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2007-08-20_Agenda Packet---Dossier de l'ordre du jourCityof SaintJohn CommonCouncilMeeting Monday,August20,2007 CommitteeoftheWhole-OpenSession 1.CalltoOrder 5:00p.m.CommitteeoftheWholeOpenSession-CouncilChamber 1(a)GovernanceStructure-StandingCommitteeSystem 1(b)Presentation-StrategicDecision-MakingModel Cityof SaintJohn Séance duconseilcommunal Lelundi20août2007 Comitéplénier(séancepublique) 1.Ouverturedelaséance 17hComitéplénierenséancepublique–salleduconseil 1(a)Structuredegouvernance–Systèmedescomitéspermanents 1(b)Présentation–Modèledeprisededécisionsstratégiques REPORT TO COMMON COUNCIL August 15, 2007 His Worship Mayor Norm McFarlane and Members of Common Council Your Worship and Councillors, Re: Governance Structure - Standing Committee System City of Saint John Attached for Council's consideration is a report on the proposed Standing Committee governance structure for the City of Saint John. The structure builds on the principles and desired outcomes identified in the previously submitted discussion paper. The report is divided into three main sections; Political Organization, Decision Making and Administrative Processes and finally the Practicalities of Implementation. The first section is particularly relevant for Council while the second deals primarily with the process aspects ofthe committee system. Essentially, the model proposes that four standing policy committees be established with broad mandates of spheres of jurisdiction. These mandates would be developed in the context of the soon to be completed Community Vision. In addition, a planning and priorities committee would be established to coordinate policies that impact several areas. Committee of the Whole would continue to assume responsibility for budgets and complex matters that require the attention and input of all of Council. A strategic approach is being advocated with the Council Committees assuming a leadership role in developing key policies and monitoring their implementation by the Administration. The Standing Committees would be the access point for citizens, staff, and other stakeholders. While the Standing Committees would consider various policy options and make recommendations to Council, the Common Council would remain the decision making body. The attached report elaborates on each of these considerations. Staff will be providing a teach-in on August 20th to review the proposed structure and its operation. Council will then have an opportunity to reflect on the approach being presented before a final decision is made on how and when to proceed. M~ r\:triCk Woods CGA ~uty City Manager! Common Clerk SAINT JOHN Strategic Decision-Making Model A Proposed New Governance Model for the City of Saint John Prepared by the Saint John Governance Project Team as part of the Vision 2015 Program August 2007 The City of saint John Slralegic Decision-Making Model for lhe Cily of Saint John Aug ust 13, 2007 Strategic Decision-Making Model Table of Contents SECTION I: Political Organization Council- Policy Committee System................................,...................."........"......".,.............................................1 Vision Context .....".".. .................. ........ ..... ........ ............., ....... ..................... ................ ........ .......... ........... .............. 2 Understanding Policy....... ............. ........ ............. .............,....... ..................... ................ ........ .......... ........ ........,........ 3 Strategic Decision-Making Model: Political Organization........ ............. ,..,... ........... ,..,.. ........ .......... ........ ........... ...... 4 Roles & Responsi bilities .................................,..,.......,....,..,.................,..,..............,..................................... ..,........4 Community (Citizens) .. .......... ............. ........... ..........,... ....... ............. ,.., ..............,.. ........ .......... ........ ................. 5 Council ... ............. .................. ............. ........... ..................... ............. ".. .......... ....... ........ .......... ........ ................. 5 Councillors........ ........... .......,.. ........,.... ........,.. ........,....,....... ............. ".. ..............,.. ....,.., .....,.... ........ ................. 6 Committee of the Whole ........ ............. ........... ..................... .................. ...... .... ".,.. ........ .......... ........ .......... ....... 7 Policy & Priorities Committee .....................................,......................................,............................................. 7 Standing Policy Committees.. ................ ........ ... ..........,....... ................. ........... ".,.. ........ .......... ........ ........ ......... 8 Standing Committee Chair .... ........... ..... ........... ..........,.......... .............. ..............,.. ........ .......... ........ ................. 8 Chief Administrative Officer (CAO)........ ........... ..........,.......... .............. .......... ........ .......,......... ........ ................. 9 Department Heads I Staff ...... ................ ........... ..........,... ....,.. .............. ................. ........... ....... ........... ..... ....... 10 Agencies, Boards and Commissions ..... ........,.. ..........,.......... ...... ........ ..............,.. ........... ....... ........... ....... ..... 10 Standing Committee Mandates ....... ............. ........... ..........,..,....... ...... ........ .............. ,..,.. ..... .......... ........... ............ 11 Committee Membership and Composition.... ........... .............,....... .............. .................... ..... .......... ........ ........,...... 12 Chair and Vice-Chair Appointments ............. ........... ..........,..,....... .......... ".. .............. ,.. ........ .......... ........ ...."....,.... 13 Committee Membership Appointments......... ........... ..........'..,....... ...... .... ".. .............. ,.. ........... ....... ........... ....... ..... 13 Termination of Standing Committee Appointments. .............,....... .......... ,.., .......... .......,.. ........ ....... ........ ............... 13 Standing Committee Rotations ..... ........... ..... ........... .............,....... .............. .......... ......".. ............... ........... ............ 14 SECTION II: Decision-Making and Administrative ProcessesStrategic Decision-Making Process .............. ........... ..........,..,....... ...... ........ .................,.. ..... .......... ........ .......... ..... 16 Access to the Decision-Making Process........................,.................,.."........................................"...............16 Consideration of Matters at Standing Committee Meetings ..........................................................................18 Financial Controls: Budget Preparation and Adoption.",.......,,,....................................................,,....,,.........18 Financial Controls: Budget Adjustments and Reallocations ..........................................................................19 Consideration of Matters at Council Meetings ...............,.".................,..,...........,..,........................................19 DissemInation of Council Referrals and Decisions ....".., ....".............. ,.., ........... ,..,.. ........ ....... .................. ..... 20 Meeting Schedules ....................... ................ .............. ........... .."................ ".. ..............,.. ,....." .......... ........ ......, ..... 20 Saint John Governance Model Strategic Decision-Making Model for the City of Saint John August 13, 2007 Agenda Preparation and Distribution.. .......... ........ .........., ",.... .......,............. ...... '.., ,..,,, '"'''''''' ...., ..... ........ ............ 21 Standing Committee Reports and Minutes .............,,,........,......,....,....,........,,..,....,..,..,,..........,......,...,,....,...."....,, 22 Public Notification for Standing Committee Meetings ........,..............,...........,..,.................,.........................,,,....,, 22 Meeting Rules of Procedure ......., ,.... ,.." ,.. .......... ........ .........., ,.. .........,........ ................. ,..,.. ........ ............. ........ ......23 Public Presentations at Standing Committee Meetings .....,.., ,...... ......... ........ ............,. ......,.. ........ ............, ...........24 Public Correspondence" ........ ............. ........ '" ,...... ........ ...................., ,......... ...... ........ .......... ......,.." .......... ...........25 Administrative Inquires...... .......... .... ......." ............................ ................,............".......... .................... ............. ...... 26 Agencies, Boards and Commissions...... ............................, .......... .............. ...,.., ,.. ............................. ............, ..... 26 Ad Hoc and Sub-Committees ,..............................................................................".......................................".....27 SECTION III: Practicalities of Implementation Council Commitment for Standing Committees.. ........ .......... .......,..,..,.... .................. ...... ........ ............. ........ ......... 29 Meeting Frequency... .......... ..........."... ......".......... .......... ................".......... ......,...... ...... .........."............,.............. 29 Public Access and Participation ........ ............... .................. .................... ................... .......,......., ,..,.................. ......29 Preparation for Council and Committee Meetings ..".........,.................................................................................. 30 Transition to a New Governance Model............................................................................................................... 30 Education..,.." ..........."",.. ........ .........".. ................" .................... .......... ...,..,.."........".......... .......... ................ 30 System Interpretation...... ................. ............,.... .................... ........ ................".................... .......................... 31 Respecting Governance Roles and Outcomes.....................,..,...,................................................,................ 31 System Evolution ........ ... ............. ........ .., "........ ........ .......... .........., ,,,.... .................. .....,... ..."............. ........ ..........,,32 Relationship to ABCs and Existing Committees of Council...........,...................................................................... 32 Additional Funding Requirements.. ........... .......... ".,....... .......... ............... ....., ....,................ ........ ........,..., ........ ...... 33 Administrative Staffing,... ............................................ ..........................".......... ........" ...................".. ............ 33 Planning Resources ..... ................ ........ ............. "...... .......... .......,............, ,.. ........ .......... ........ ............, ........ ,.. 33 Public Notice, Awareness, and Education ......................,.............................................................................. 33 Meeting Locations ... ........... ............. ........... .......... ...,......, ,...... .............. ............................ ........... .......... ........ 34 By-law and Legislation Changes...... ........... ...... ....... ................,..................... ............................ ........,.,.. .............34 SECTION IV: Conclusion ,..................................,........".............. "..,........ "................. ....................""....................................".".................35 SECTION V: References ',............................................................................."..,........"......................................."....................................".36 Saint John Governance Model Strategic Decision-Making Model for the City of Saint John Aug ust13, 2007 SECTION VI: Appendices Appendix A: Strategic Decision-Making Model for the City of Saint John"........................................................... 38 Appendix B: Strategic Reference Model for the City of Saint John...................".................................................. 39 Appendix C: Sample Standing Committee Meeting Schedule.............................................................................. 40 Saint John Govemance Model iii Strategic Declsion~Making Model for the City of SainI John August 13, 2007 Reader's Guide The purpose of this document is to present a working strategic decision-making model that will form the basis for the City's new governance system. The model is defined by processes (how the system works in making decisions) and structure (how the components of the system are organized), Process and structural recommendations are presented in the left hand column of the document. The rationale for a number of the recommendations presented in the proposed model is provided for in the right hand column in italics. Saint John Governance Model iv Strategic Decision-Making Model for the City of Saint John August 13, 2007 SECTION I: Political Organization Council. Policy Committee System The system being proposed for the City of Saint John is based on a Council - Policy Committee structure. The complete Strategic Decision-Making Model is illustrated in Appendix A. In this form of governance, Council establishes a limited number of standing committees that are responsible for developing, reviewing, and interpreting policy and evaluating the performance of those policies once they have been implemented. These policies will guide Council's decision-making in translating the Community's vision into a reality. Each Standing Policy Committee (SPC) recommends policy to Council, who in turn makes the final decision. Initially, several basic principles of good governance were used in the development of the proposed model. More detail on these principles can be found in Table 1 on the following page. The principles of good governance are important as they serve as touch stones to guide decision-making. The principles presented are well established and have stood the test of time. A committee structure that satisfies these principles will not only enable, but will also support good governance for the citizens of our community. Principles of Good Governance · Democratic · Accessible and Representative . Strategic Vision · Responsive and Effective · Accountable · Efficient · Transparency · Equity · Rule of Law In addition to these basic principles of good governance, two other key considerations were used in the development of the model. . Council's role as a decision-making body is one that is focused on policy and setting the strategic direction for the community versus the Administration's responsibility of implementing policy and delivering the services required to achieve strategic goals. . Making the necessary connections between the community's vision and goals, Council's strategic outcomes, and the day-to- day operations of the City as illustrated in the Strategic Reference Model (Appendix B) developed for the City of Saint John to guide the Vision 2015 process. The anticipated benefits or outcomes from the implementation of the proposed model are set out in the right hand column. Benefits of a Council.Po/icy Committee Form of Governance Focuses effort on policy issues rather than on matters of administrative detail speCific to individual departments; reinforcing the governance role of Council. Creates a more meaningful role for Councillors; allowing them to exercise leadership in their field of expertise or interest in developing policy that will have a positive impact in the community. Creates a more effective decision- making process through the alignment of policy development with planned community outcomes that are designed to help the community achieve its vision. Improves the effectiveness and efficiency of service delivery through better coordination of resources by aligning services with planned community outcomes; ensuring citizens realize value for money. Improves Council's decisions with better analysis and understanding of policy issues through a balanced division of workload and more informal, coordinated, and collaborative debate on issues. Provides a forum for better public participation in strategic decision- making; improving responsiveness to the needs and concerns of citizens. Improves accountability and transparency with greater public participation in the decision- making process. Sets a common purpose and defines performance responsibilities. Saint John Governance Model Strategic Decision-Making Model for the City of Saint John August 13, 2007 T bl 1 F" fG dG a e : Ive Principles 0 00 ovemance Principles of Context1,2,3 Good Governance 1. Legitimacy & Voice Democratic: Mediates differing interests to reach a broad consensus on what is in the best interest of the entire community, Accessible and Representative: All citizens have a voice in decision-making; making their views known to those elected and having the elected officials act on their behalf. 2. Direction Strategic Vision: Leaders and the public have a broad and long-term perspective on good governance and sustainable community development, along with a common understanding of what is needed in the community. 3. Performance Responsive and Effective: Local government exists to service the citizen and to provide him or her with a better life by addressing community needs and concerns. Efficient: Meeting the needs of the community while making the best use of resources. 4. Accountability Accountable: Local government is answerable to the citizens for its decisions and actions, or lack thereof. Transparency: Based on the free flow of information, citizens have access to the facts, issues, debate and vote on all legislative matters before Council, allowing them to evaluate the performance and responsiveness of the elected. 5. Fairness Equity: All citizens have the ability to maintain and improve their well-being. Rule of Law: Legal frameworks must be fair and enforced impartially in order to protect the citizen against possible excesses of authority by government officials. Vision Context Vision 2015 is a plan for continuous improvement, for both the community and the organization. The goal is to allow the City to transform how it operates by more effectively and efficiently responding to public needs, while improving accountability and transparency in local government. Supporling the Vision 2015 process is the Strategic Reference Mode' adapted for the City of Saini John. The expanded mode' can be found in Appendix B. The achievement of the effectiveness, efficiency, accountability, and transparency goals start with a vision for the community. !' Vision A vision is a description of what a community's success will look like at some point in the future. It is an expression of the hopes and dreams of the community, highlighting what the public values and their needs. !' Outcomes " Community visions are developed and owned by the community, Public participation in the visioning process provides a basis for the development of a shared vision for the community. The identified strategic priorities will support the achievement of the Community Vision. A community owned vision fosters continuity in decision. making as political and administrative changes occur. Services " 1 J. Graham, S, Amos, T, Plumptre, Principles of Good Govemance for the 21 ol Century, lnsUtute on Governance, Augusl2003, Page 3. , McG regor, Dawson and McGregor, Democratic Government in Canada, University ofToronto Press, 1971. Pages 3-12, a K, Antoft, J. Novak, Grass Roots Democracy, Local Govemmentin the Maritimes, Henson College, Dalhousie Unive~ity, Halifax, 1988. Page 155-157. Saint John Governance Model 2 Strategic Decision-Making Model for the City of Saint John August 13, 2007 A community owned and developed vision is a true reflection 01 the thinas that matter to Saint Johners. The proposed model is very much anchored in the achievement of a clear and common vision for the community. Council's role as a decision-making body is to focus on policy matters and setting the strategic direction that will guide the Administration and the community in the achievement of its vision and related goals. It is Council's responsibility to identify its priorities for the community based on the vision and goals developed by the community. These priorities will evolve over time. Standing Committees provide leadership in developing and recommending strategic outcomes to Council that will contribute to the achievement of desired changes in the community. Outcomes are the intended results that will contribute to the achievement of community goals and ultimately the vision. More than one outcome may be required to achieve any given community goal. Planned outcomes will continue to evolve as results are realized. An outcome is an end-result that brings about a desired chanae in the community based on the public's needs. StandinQ Committees are also the access point for citizens: a forum to raise matters of concern in the community. Council and committees use this input from the public in their decision-making, more specifically in the development of policy required to address the needs of the community and make the vision a reality. In response to the strategic direction set by Council, the City (as a Corporation) delivers services to citizens. Programs and services offered by the City will be determined by the value they provide to citizens and the fit with the strategic direction. Simply put, there is a direct link between the services provided and what the public values. Various stakeholders have a leadership role in defining and achieving the community's vision and goals. '-lISIJ'l & C;ndh PllOllt f!S Outcclres Ser'Jlces ~ Community ~Council ~Standing Committees ~ Administration Understanding Policy Policy may be defined as a governing principle, plan, or course of action that guides or influences future decisions.4 Council makes public policy decisions; others perform the administrative task of implementing those policies. Table 2: Examples of policy versus administrative responsibilities. Legislative bodies are most effective and successful when they focus on strategic functions that guide the future of their communities. 4 Municipal Research & Service Centre, Local Government Policy Making Process, February 1999, Report No. 45. Page 2. Saint John Governance Model 3 Strategic Decision-Making Model for the City of Saint John August 13, 2007 Policy Adm inistration Adopt a budget and set a tax rate. Propose a budget. Spend within budget limits Adopt the community's vision and goals and set its Delivery of services in support of CouncH's strategic direction strategic direction. and jn support of vision achievement. Adopt policy allowing or prohibiting off-street parking. Enforce the tenns of the parking policy. Strategic Decision-Making Model: Political Organization The political organization of the proposed governance system as illustrated in Figure 1 is comprised of: . Council . Committee of the Whole . Policy & Priorities Committee Council Committees . Four (4) Standing Policy Committees _ Governance Function _Administrative Funclion Committee of the Whole Council Common Clerk PolIcy &f'rIotfties .~ ~"*' CQninftee $1IndilJ F!aIic:y CommIIh\ie . A limited number of Standing Policy Committees with broader mandates supports a more integrated, strategic approach to decision-making and promotes better policy coordination; focusing Council's effort on poticy issues (i. e., purchasing policy) rather than on matters of administrative detail (i.e., type of vehicle). A limited number of Committees also ensures time commitments for Members of Council, staff, and other resources are manageable. Chief Administrative Officer (CAO) ~_~______________~______________~_____________2 Figure 1: Political organization of the Strategic Decision Making Model Roles & Responsibilities A clear understanding of roles and responsibilities for Council; Committee of the Whole; Policy & Priorities Committee; Standing Policy Committees; Standing Committee Chairs; the Chief Administrative Officer (CAD) I staff; agencies, boards and commissions (ABCs); and the public is necessary for the desired outcomes to be achieved. A number of stakeholder roles and A municipal government, whether it uses a committee system or not, cannot be effective without a common understanding of the role of each participant and a shared sense of purpose. Saint John Governance Model 4 Strategic Decision-Making Model for the City of Saint John August 13, 2007 responsibilities have been set out in this report to aid in the development of the new governance structure. Community (Citizens) The community's role in the proposed system is to ensure that Council is effective in its decision-making in terms of addressing the needs of the public. Citizens must have an opportunity to actively participate in the policy process and to raise matters of concern within the community. Citizens are responsible for: . electing the Mayor and Councillors to public office; . running for public office (if they so choose); . participating in the development of a vision and goals for the community; . participating in the strategic decision-making process by raising matters of public concern to Standing Committees; . monitoring the progress of Council in their efforts to achieve the vision for the community, and . holding Council accountable for their decision and actions or lack thereof. Council Council's role is that of a decision-making body focused on policy development. Setting a strategic direction for the community and supporting the achievement of desired outcomes required to realize a vision for Saint John are its priorities. Council is fully accountable to the citizens of the City of Saint John for the results of its decisions and actions. Council's responsibilities include: . making final decisions on all matters related to policy; approving new and/or amending by-laws; and adopting operating and capital budgets; . considering the welfare and interests of the entire municipality; . identifying strategic directions in terms of priorities for the City of Saint John designed to achieve the vision for the community; . providing clear mandates for Standing Committees and clear direction to the Administration; . delegating appropriate decision-making authority to Standing Committees and the Administration; . monitoring the performance of Standing Committees and itself to ensure that the City's priorities and goals are being achieved; The success of 8 Council-Policy Committee system also requires a mutual respect for the roles of all smkeho~ern ~8t p8rl~~are m ~e strategic rJecision-making process. Effective decision making by Council requires input from the community. Citizens must have a voice in the process so that their needs are adequately expressed; ensuring that elected officials have the ability to represent the best interests of the entire community. The Municipalities Act makes a cfear distinction between the policy making role of Council and the administrative rofe of staff (Section 36(2.1)]. "A Councillor of a municipality shaJ/ .... c) Participate in devefoping and evaluating the policies and programs of the municipality. " Council's role as a final decision- making body is based on the fact that as the elected body, it alone has the authority to make decisions, take action, adopt polices, and enact by~ laws put forward on behalf of the electorate as defined by the Municipalities Act [Sections 4(3), 9(1), and 10.2(2.]). Saint John Governance Model 5 Strategic Decision-Making Model for the City of Saint John August t3, 2007 . hiring and monitoring the performance of the CAO, and thereby the overall petformance of the organization; . hiring and monitoring the petformance of all staff roles that directly report to Council, including the Treasurer, Common Clerk and City Solicitor; and . appointing members to Council created civic agencies, boards and commissions, including those with quasi judicial decision- making powers; ensuring Council's priorities are respected by the ABCs and that the goals of the respective ABCs align with established Council priorities. Councillors The primary role of Councillors is to fulfill their governance obligations as set out in the Municipalities Act. Councillors take on a leadership role with their active participation on Standing Committees in developing policy that will advance Council's strategic directions and priorities. According to the Municipalities Act Section 36(2.1), a Councillor of a municipality shall; a) Consider the welfare and interests of the entire municipality when making decisions; b) Bring to the attention of Council matters that may promote the welfare or interests of the municipality; c) Participate in developing and evaluating the policies and programs of the municipality; d) Participate in meetings of Council, Council Committees and any other body to which he or she is appointed by Council, and e) Petform any other duties conferred upon him or her by this or any other Act or by Council. More specifically these responsibilities of Councillors include: . fulfilling their obligation to participate in assigned Standing Committees; . adequately preparing for Standing Committee meetings to ensure they are effective and efficient in the decision-making process with respect to the Committee's recommendations to Council on policy matters; and . respecting the roles of all stakeholders in the decision-making process including Council, Committee of the Whole, Standing Committees, and Standing Committee Chairs. Committee of the Whole StattJtory obligations as set out in the MunicipaliUes Act define the governance role for Councillors. An effective governance role will preclude the participation of Councillors on agencies, boards and commissions, with the exception of those with legislative requirements (e.g., Planning Advisory Committee). Saint John Governance Model 6 Strategic Decision-Making Model for the City of Saint John August 13,2007 The Committee of the Whole's role in the proposed system is that of a deliberative body comprised of all Members of Council meeting as a Committee, chaired by the Deputy Mayor. Policy matters that are complex and/or require the attention of all Members of Council are referred to Committee of the Whole. Committee of the Whole's responsibilities include: . developing, reviewing, and interpreting Council's strategic priorities; . recommending operating and capital budgets; . considering policy matters that fall within two or more mandates defined for Standing Policy Committees; . generating reports that present recommendations to Council for its consideration; . providing direction to the Officers of the Corporation; . carrying out decision-making authority delegated to the Committee by Council; . providing an open forum for public participation and detailed discussion on major issues as part of the City's decision-making process as the Committee is a key access point for citizens and other stakeholders; and . addressing public correspondence and requests. Policv & Priorities Committee The Policy & Priorities Committee's role as a coordinating body is to ensure collaboration and consistency in decision-making across all Standing Policy Committee mandates in working toward fulfilling a shared vision for the community. Policy & Priorities Committee responsibilities include: . providing direction and ensuring co-ordination between related policies, strategic directions, and services in achieving the shared vision for the community; . making recommendations to Council related to governance policy and structure; financial planning and budgeting; fiscal policy including revenue, debt, and tax policies; audits; appointment of auditors; intergovernmental matters; Council and its operations; human resources and labour relations; and other administrative/policy functions related to the operations of the Corporation; . evaluating the impact (effectiveness) strategic policy decisions have on meeting the needs of the community; Although alf Members of Council are present, Committee of the Whole has a different mandate and authority than Council. Only Council at a formal meeting can deal with the award of contracts, adoption or amendment of by-Jaws, and public hearings. Committee of the Whole aflows for the consideration of matters in greater depth in a less formal environment. Its raJe is to make recommendations to Council on the matters described above. Many complex policy issues requiring the attention of a/l Members of Council will be debated within the Committee system. Committee of the Whole provides a good mechanism to discuss most, if not al/, of these major issues in an open, public forum. Examples of policy issues that might be discussed in Committee of the Whole include the consideration of a ward system; capital and operating budgets; and development related to pipelines. Many Canadian municipalities that employ a Council-Committee system have recognized that policy development in one area largely affects the implementation of policy in other areas, therefore they have found it necessal}' to create a coordinating body to ensure that all service areas are col/aboratively working towards a common vision for the community. The proposed mandate and responsibilities for the Po/icy & Priorities Committee will allow for the elimination of a number of existing committees (e.g., Nominating, Vision 2015) and will improve the efficiency Saint John Governance Model 7 Strategic Decision-Making Model for the City of Saint John August 13, 2007 · recommending appointments to Council; and · carrying out decision-making authority delegated to the Committee by Council. Standina PolicV Committees (4) The Standing Policy Committee's (SPC) role in the proposed system is that of policy advisor. They have a leadership role in creating policy that will move the community forward in achieving its stated goals. Policy development, review, interpretation, and performance evaluation make up the primary function of a Standing Policy Committee. Although their focus is not on operational issues, other administrative responsibilities can be delegated to these Committees as the Council deems appropriate. Standing Policy Committee responsibilities include: · providing a forum for substantial debate related to the development, review, interpretation, and performance evaluation of policy and strategic directions within their respective mandates; · providing an open forum for public participation and detailed discussion with citizens as part of the City's decision-making process; · making policy recommendations to Council and recommending priorities wIthin the Committee's mandate; · evaluating the impact (effectiveness) strategic policy decisions have on meeting the needs of the community; · considering reports from the Administration on implementing policy decisions within the Committee's mandate; · carrying out decision-making authority as delegated to the Committee by Council; and · promoting accountability and interaction within Council on behalf of the City's agencies, boards and commissions. Standin!:! Committee Chair The Standing Committee Chair's role in the governance system is to provide leadership to each Committee's membership in developing policy within the Committee's mandate. The focus is on helping the community achieve its vision and goals. The Standing Committee Chair's responsibilities include: · coordinating policy development across all Standing Committee mandates by being an active member of the Policy & Priorities Committee; · participating in agenda meetings to facilitate the effIcient progress of Standing Committee meetings; · preserving order and decorum during Standing Committee meetings; of the decision-making process. Standing Policy Committees play a leadership role in the decision-making process in the development of policy and strategic directions. The Municipalities Act defines COunc;t/ors as having a role to play in 'developing the policies and programs of the municipality'. This mandate indicates a clear separation between policy and administration The role and responsibilities of Standing Policy Committees in the proposed system ref/ect this separation of policy and administration. 'Policy' wilt be included in the title of each of the standing committees to reinforce the primary role of each committee - to develop, review, and implement strategic policy. The successful implementation and on-going operation of a Council- Policy Committee system requires strong leadership and guidance from the Committee Chairs to ensure that the system is working as intended and that the desired outcomes are achieved. A clear understanding of the Chair's role in the system helps the Members of Council in these positions to carry out their leadership responsibilities. Saint John Governance Model 8 Strategic Decision-Making Model for the City of Saint John August 13, 2007 . making decisions on all questions of procedure during Standing Committee meetings; . presenting the recommendations of their respective Standing Committee to Council at Council meetings on behalf of the Standing Committee; and . supporting the recommendations of their respective Standing Committee at Council. Chief Administrative Officer (CAO) The CAO's role in the proposed system is to guide the Administration in the implementation of Council's policies and strategic directions in order to achieve the established vision for the community. The CAD's primary responsibility is to lead the planning and coordination of the work of the Administration; making sure that the services delivered by the City contribute to desired outcomes for the community and ensuring accountability for those results. The CAO is responsible for the overall operation of the Corporation and is directly accountable to Common Council. The CAO's responsibilities include: . providing corporate leadership and direction to ensure that all City policies and services are effectively coordinated, implemented and delivered in a responsive manner, and reflect the overall strategic priorities of the City as defined by Council; . leading the organization in carrying out its executive and administrative responsibilities; . establishing a structure for the Administration that ensures the organization supports the achievement of Council's priorities; . administering human resource and labour relation matters for all City employees, with the exception of those hired or appointed by Council; . providing direction to the Corporation / staff; . reviewing and reporting on the performance of the Administration; . providing recommendations to Council, Committee of the Whole. and Standing Committees to develop, guide, and achieve Council's priorities and strategies; . advising and informing Council on policy issues, operations of the Administration, and the financial condition of the City; . preparing and submitting operating and capital budgets for Council's consideration; . attending all meetings of Council and Committee of the Whole and ensuring appropriate staff presence at Standing Committee meetings; . addressing Council and any Standing Committee on any matter relevant to the function or administration of the City; . reviewing and approving all staff reports being submitted for Council and/or Committee consideration; and A move to a Council-Policy Committee system from a {Jure Council-Manager system requires a refinement of the roles and responsibilities for the CAG. This is fundamental for both the Council and CAO if the working relationship is to be productive and expectations are to be achieved. The responsibilities outlined for the CA 0 are reflective of the statutory delineation of the 'policy' role of elected representatives and the 'administrative'role of staff. The CAD pursuant to the City Government Act 1936, has the k". control of and supervision over the heads of deparlments" and is responsible to Common Council for the efficient administration of these deparlments. The statute furlher provides that the CAO's role with respect to control and supeN/sion does not extend to the Common Clerk or to the City Solicitor or to the Commissioner of Finance. Each of these positions reporls directly to Council and the Common Clerk and City Soficitor are responsible for the control and supervision of employees within their departments. Saint John Govemance Model 9 Strategic Decision-Making Model for the City of Saint John Aug ust 13, 2007 . performing other duties as defined in relevant legislation and bylaws or as directed by Common Council. Given the pivotal role of the CAO between the elected officials and the Administration, the CAO has the right to attend all meetings of Council and its Committees. Department Heads I Staff The primary function of the Administration is to implement and enforce the policies adopted by Council through the effective and efficient delivery of services that contribute to the achievement of Council's priorities and strategic directions. Staff also supports the decision-making process by providing input into the development of policy through the CAG. Administrative responsibilities include: . implementing and enforcing the policies and strategic directions adopted by Council; . delivering effective and efficient services; . preparing and submitting recommendations or information reports from the Administration through the CAG for Standing Committees to consider in the development of policy; . responding to administrative inquiries and public correspondence; . attending any Standing Committee meeting in which they have a recommendation or report on the agenda as directed by the CAG; . addressing all questions directed to them through the CAG during Standing Committee meetings; and . reporting through the CAG on the performance of their service responsibilities. Aaencies, Boards and Commissions (ABCs) The purpose of an ABC is to deliver and administer service(s) on behalf of the City. As a service provider, the primary function of an ABC is to implement and support the policies adopted by Council through the effective and efficient delivery of services and to contribute to the achievement of Council's priorities and strategic directions. Given that City ABCs are created by Council, they are directly responsible to Council. In the proposed system, ABCs will interact with Council through one or more of the Standing Policy Committees. In support of the decision-making process, ABCs provide input into the development of policy to a Standing Committee according to the Committee's mandate and the nature of the recommendation. The responsibifities outlined for the Administration are reflective of the 'administrative'role of staff. The responsibilities outlined for the City's ABCs are reflective of the statutory delineation of the 'policy' and leadership roles of elected representatives. Saint John Governance Model 10 Strategic Decision-Making Model for the City of Saint John August 13, 2007 ABC responsibilities include: . implementing and enforcing the policies and strategic directions as determined or directed by Council so to ensure the achievement of the community's vision; . delivering effective and efficient services; . preparing recommendations or information reports for the appropriate Standing Committee to consider in the development of policy; . regular reporting on the alignment of strategic direction, service activities, and perfonnance to the Standing Committee where their service responsibilities fall within the Committee's mandate; · complying with legislative responsibilities (I.e., budgets, financial statements) : . attending any Standing Committee meeting in which they have a recommendation or report on the agenda or where their service responsibilities fall within the Committee's mandate; and . addressing all questions directed to them during Standing Committee meetings. Standing Committee Mandates Each standing committee will operate and make recommendations to Council on policy within a specified mandate Uurisdiction). Mandates are broad statements that define the purpose and authority {sphere of jurisdiction) of a committee. The mandate guides the Committee in its decision-making (with respect to recommendallons). Mandates specific to the proposed governance model are not presented in this report. Proposed standing committee mandates will be the subject of a separate report, A number of options exist (or combination of options) for the development of committee mandates, each with their own positives and negatives. The following are possible options that will be evaluated and presented in the Standing Committee Mandate report: 1. Departmental Ali~mment: A standing committee is created for one or more of the major City departments. The committees make recommendations on the services and operational responsibilities undertaken by their respective departments. 2. Service Based Alignment: Standing committees are organized around meaningful and easily understood clusters of service responsibilities. Essentially services with similar goals are grouped together to form a mandate (I.e., all services responsible for public safety would likely fall under the same committee mandate). Considerations in developing committee mandates include: . Ensuring Council's decision-making contributes to the achievement of the community vision. . Ensuring a balance in workload among af! committees. . Providing a supportive and co/laborative working environment. . Provide meaningful opportunities for public participation in the decision-making process. . A voiding duplication of effort. . Avoiding conflicting roles and responsibilities. . A voiding the creation of decision- making silos. Saint John Governance Model 11 Strategic Decision-Making Model for the City of Saini John August 13, 2007 3. Sustainabilitv Needs: A standing committee is created to contribute to each of the basic needs identified in the Earth Charter (EarthCA T) that exist within a sustainable community including: good governance, social well-being, a vibrant local economy, effective and efficient services and infrastructure, and a healthy environment. In achieving a sustainable community, standing committees make recommendations that find a balance amongst each of these needs to ensure that the decisions of today do not adversely affect the needs of future generations. 4. Outcome Based: A standing committee is created to contribute to one or more strategic outcomes or priorities adopted by Council that are intended to achieve the longterm vision for the community. An outcome is a broad based goal that directly addresses one or more needs in the community. Committee Membership and Composition Only Members of Council can be appointed to Standing Committees; emphasizing Council's accountability to its citizens as elected officials and responsibility for outcomes by ensuring their decisions effectively address the things that matter to Saint Johners. The Mayor is an ex-officio member of all Standing Committees. With that the Mayor has all the privileges of Committee membership, excluding the right to vote and is not counted in determining the number required for quorum. Committee of the Whole: Consists of all Members of Council. The Deputy Mayor acts as the Chair, fulfilling the Chair's responsibilities and actively participating in the decision-making process Policy & Priorities Committee: Consists of the Chairs of the four Reinforces Council's governance ro'e to set the strategic direction for the community In a case where a Comm#tee recommendation is fully supported by the Committee membership (5), the Mayor could potentialfy have to cast the deciding vote at a Council meeting if all of the other Members of Council did not support the recommendation, Not being considered in the quorum allows the Committee to proceed even in the absence of the Mayor and eliminates the need for the Mayor to attend lall' Committee meetings. Changing the Chair makes a clear distinction between Council meetings and those of the COW; it also allows the Mayor to participate more fully in the debate. Committee composition is designed Saint John Governance Model 12 Strategic Decis'lon-Making Model for the City of Saint John August 13, 2007 Standing Policy Committees and the Mayor who is the Chair of the Committee. standina Policv Committee: Each Committee consists of five (5) Members of Council of which one Member is appointed the Chair. to ensure that there is coordination in policy creatiDn across all areas Df jurisidiction. Committee composition is designed to balance the workload across all Members of Council and to ensure an adequate number of Members for quorum at Committee meetings. Chair and Vice-Chair Appointments The Mayor appoints the Chair for each of the Standing Policy Committees, A Member of Council can only chair one Standing Policy Committee at any given time. A Member of Council cannot Chair the same Committee in two (2) consecutive rotations. The Vice-Chair for each Standing Committee is elected from amongst the Members of the Committee. The Mayor provides leadership by ensuring each Committee aligns itself to achieve the community's vision. Successful implementation of a new governance model requires strong Chairs to lead their respective Committees. Limitations on Chair appointments provide opportunities for a number of Members of Council to act as a Chair of a Committee. Committee Membership Appointments Members of Council make an 'Expression of Interest' to the Committee of the Whole. The Committee of the Whole recommends appointments to each of the Standing Policy Committees. In determining these appointments, the Mayor will have already made his/her Chair appointments. Standing Policy Committee membership recommendations are approved by Council. Allows Council as a whole to take a leadership role in the operation of the governance system and balances the authority of the Mayor to appoint the Chairs. Termination of Standing Committee Appointments Termination of Committee Member AlJlJointments Members of Standing Committees who fail to attend three successive regular or special meetings, without being authorized to do so by the Committee, will have their membership terminated. The success of any governance system is its ability to make effective and emcient decisions and the commitment of individual Members of Council to making the system work. Saint John Governance Model 13 Slralegic Decision-Making Model for lhe Cily of Saint John August 13, 2007 Reception of a written notice of regret by the Committee Member will constitute authorization for absence at Committee meetings. The Chair can also make a recommendation to Council with respect to the termination of membership for any Committee Members: . that are not working within the mandate defined for the Committee; or . neglecting or refusing to give proper attention to matters before the Committee. Council will appoint a replacement for the Committee position left vacant by the termination of membership. Termination of Chair ADDointments The Mayor can recommend the termination of a Committee Chair appointment to Council when the Chair neglects or refuses to: . call meetings of the Committee when required to conduct the business of the Committee; . conduct the business of the Committee in accordance with its decisions or actions; . participate on the Policy & Priorities Committee; or . work within the mandate defined for the Committee. Committee Members could also make a unanimous recommendation to the Mayor for the termination of a Chair appointment for the reasons defined above. When problems arise that impede the system's ability to function and work as intended, there needs to be a mechanism in place to ensure Committee membership is appropriate. Successful operation of the system requires stability; therefore, termination of Chair or committee appointments should be a rare occasion. Standing Committee Rotations Committee membership for the Policy & Priorities Committee and Standing Policy Committees is rotated every two (2) years, Committee chairs are also rotated every two (2) years, consistent with the rotation of Committee membership. Two (2) Members of Council will remain on the Committee, while three (3) new members are added. An example of a possible configuration of committee members can be found in Table 3. Rotation of Members occurs at the mid-way point of Council's term (Le., June) following the same procedures identified for Committee appoi ntments. Periodic rotation is more equitable, providing more opportunities for Members of Council to sit on a SPC of their choice and/or to act as chair. Rotation ensures new ideas are constantly being considered in policy development. Rotation also helps Members of Council develop more experience in a number of strategic areas of the community. SainI John Governance Model 14 Strategic Decision-Making Model for the City of Saint John Aug us! 13, 2007 Ability, interest, availability and continuity will be key considerations in the Committee Rotations Keeping two (2) Members on the SPC provides for continuity in decision- making, especially for complex issues that span the two year rotation. Table 3: Possible confi uration of Committee Members 1-1 Rotation SPC I,~embers of CounCil A B C o 1 6 3 1 2 7 4 2 3 8 5 8 4 9 6 9 2nj Rotation , SPC r\,1embers of COLlllcil 5 10 7 10 AA 1 5 7 B 9 BS 2 3 4 6 10 CC 1 3 7 9 10 DD 2 4 5 6 8 Saint John Govemance Model 15 Strategic Decision-Making Model for the City of Saint John August 13, 2007 SECTION II: Decision-Making and Administrative Processes Strategic Decision-Making Process The strategic decision-making process describes the route by which matters enter and flow through the system, generally outlining how final decisions are made by Council. The process also describes the interactions between the political and administrative components of the system. More detailed infolTT1ation on specific processes will be contained under their own heading. Figure 2 shows a graphical representation of the strategic decision-making process. :{Co~~cii ;o~~iiie~ i ABC i ;ubl~"I 01t,~~ - - - - - - - - - - - - - - - - - (" b~k: to) I take~oIders w~~ information I referral I de, is ions : [refers recommendations approprialely according to mandate and decision-making authority) (makes final decisions and/or amends Council Committee I Administrative recommendations) (staff through tile City Manager) ABCs Other Stakeholders Figure 2: Strategic decision-making process. Access to the Decision-Makino Process The access point to the decision-making process is a Standing Committee. The Clerk plays a statutory role in directing information and recommendations through the system. This is consistent with a number of responsibilities set out in the City of Saint John Procedural By- law for the Clerk. Matters that are considered to be an emergency and will be adversely affected by the timing of the process may be referred directly to Council. All matters to be considered by Councilor a Standing Committee are submitted in writing to the Clerk. The Clerk refers each matter to Councilor the appropriate Standing Committee agenda for the next Saint John Governance Model 16 Strategic Decision-Making Model for the City of Saint John scheduled meeting. Referrals are made according to decision- making authority and Standing Committee mandate. Matters to be considered by a Standing Committee come from Members of Council, the Administration, the City's agencies, boards and commissions, citizens, and other stakeholders (Le., community organizations). There may be instances when the Administration through the CAG or other Officers will deal directly with Council. With respect to Members of Council: · Members of Council can make administrative inquiries through the Chair to the CAD at a regular scheduled Councilor appropriate Standing Committee meeting. · Members of Council can bring items of a policy nature forward to a Standing Committee meeting. · Members of Council may submit matters of public concern for consideration at a Standing Committee meeting. With respect to the City Administration: . Staff, under the direction of the CAD, prepares recommendations and information reports from the Administration and provides policy related advice for Standing Committees to consider. · The CAG reviews, amends and/or approves all recommendations and reports from the Administration. · Municipal Officers appointed by Council will continue to report directly to Council as required. · Staff responds to matters of public concern through the CAG. With respect to the City's aaencies. boards. and commissions: . ABCs will access the Council through the various Standing Policy Committees. · Progress, issues, and recommendations are presented to one or more Standing Policy Committees depending on the nature of the issue and the mandate of the Committee. · ABCs prepare policy recommendations and information reports for Standing Committees to consider. · ABC's prepare reports for Standing Committees on their operational plans, outcomes, issues, concerns, challenges and opportunities within their respective mandates. · ABCs submit their strategies to ensure alignment with Council's priorities. With respect to public participation: · Citizens and organizations can raise concerns, submit correspondence, or make a presentation to a Standing Committee on any issue that falls within the mandate of the Committee. · A Standing Committee may choose to make a recommendation to Council that a public presentation be made directly to Council. · Citizens and organizations can also provide input into policy development by dealing directly with the Administration or one of August 13, 2007 Among the access points to the Council-Policy Committee system, it is important to note the inclusion of the public in the decision-making process. Saint John Governance Model 17 Strategic Decision-Making Model for the City of Saint John August 13, 2007 the City's agencies, boards or commissions. Consideration of Matters at StandinQ Committee MeetinQs All matters of a policy nature are first considered by a Standing Committee. Prior to a Standing Committee meeting, the Committee Chair meets with the Clerk and the CAO to review procedural matters that are relevant to the Chair as well as the agenda and supporting documentation to determine if aU relevant information required to make an informed recommendation to Council is provided. Staff is given an opportunity to provide additional information before the meeting if necessary. During a Standing Committee meeting, informal debate is conducted to review CAG recommendations and reports. Correspondence or presentations from the public, ABCs, and other interested parties are also considered. Standing Committees under their mandates can: . approve Administrative recommendations for Council Consideration; . amend and approve Administrative recommendations for Council Consideration; . submit their own recommendations; or . refer recommendations back to staff through the CAO or an ABC through the Clerk for further analysis and information. Committee decisions on policy matters are presented to Council in a Committee report in the form of Standing Committee recommendations. Financial Controls: Budget Preparation and Adoption Committee of the Whole will continue to be responsible for directing the development of operating and capital budgets. In developing the budgets, the Committee of the Whole: . provides direction to the Administration (through the CAO) with budget guidelines and considerations; . considers the recommendation of the CAO on a proposed operating and capital budget (the City Treasure may prepare the budget documents on behaff of the CAO with input from staff that considers priorities and long-term planning); . considers recommendations from the Policy & Priorities Public participation improves accountability and transparency in decision-making, while ensuring that service delivery is responsiveness to public needs. Agenda meetings supporl an effective and efficient decision-making process; better ensuring that substantial policy debate occurs before being presented at Council for a final decision. The informality of Standing Committee meetings encourages more public participation; ensuring the public has an opportunity to be engaged in the decision-making process - aI/owing Council to be more responsive to public needs. Referrals for further information and analysis from staff are made through the CAO. Staff is responsible to the CAO. Saint John Governance Model 18 Slralegic Decision-Making Model for the City of Saini John August 13, 2007 Committee and Standing Policy Committees related to long-term strategic planning; . hears from interested citizens and ABCs as deemed appropriate; and . makes a recommendation to Council as to the operating and capital budgets. Council adopts the budget the operating and capital budgets based on the recommendation from the Committee of the Whole. Financial Controls: Budget Adjustments and Reallocations Within the financial accountability framework, Standing Policy Committees make recommendations to the Committee of the Whole on matters related to: . their ability to spend on matters related to expenditures within the budget allocations; . relocation of funds within budgets and across operating and capital budgets; and . overspending of funds. Standing Policy Committee recommendations related to spending are considered by Committee of the Whole. After consideration of the recommendation by the Committee of the Whole, it can: . approve the recommendation for Council consideration; or . amend and approve the recommendation for Council consideration; . make and approve a new recommendation; or . refer the recommendation back to the Standing Policy Committee or Policy & Priorities Committee for further analysis and information. Consideration of Matters at Council Meetinas Council makes all final decisions that fall within its statutory governance role and responsibilities. Council considers: . policy recommendations referred to it by a Standing Committee; . other matters that fall within its decision-making authority referred to it by the CAD and other Officers of the Corporation; and . all other matters that are legislated (e,g., land use planning, by- laws, appointments). Debate on policy matters can take place at Council meetings; however, this debate should be limited in that the questions should not involve a lengthy reconsideration of the matters Considered debate on Committee recommendations helps to eliminate rehashing of policy matters at the Council table; resulting in a more effective decision-making process. Council is not expected to rubber stamp committee recommendations. However, a lengthy reconsideration of a committee matter usualfy indicates that the matter should be referred back to the Committee for a more in-depth review, Saint John Governance Model 19 Strategic Decision-Making Model for lhe Cily of Saint John AuguS113,2007 than have been previously presented in the Standing Committee Report. Council under its decision-making authority can: · adopt Standing Committee and CAD recommendations; . amend and adopt Standing Committee and CAO recommendations; . refer recommendations back to a Standing Committee or ABC through the Clerk or to staff through the CAD for further analysis and information; or . direct matters to Standing Policy Committees and/or Officers of the Corporation for consideration and recommendations. Dissemination of Council Referrals and Decisions Council decisions, referrals and information items are referred through the Clerk's office to the CAD, municipal officers, City's agencies, boards, and commissions; citizens; and other stakeholders. Council's decision-making role and the deliberative role of the respective Committees must be respected. Meeting Schedules Reaular Scheduled Meetinas The Committee of the Whole meets on the alternate Mondays to regular Council meetings. The Policy & Priorities Committee and each of the Standing Policy Committees meet once a month according to the following schedule: Policy & Priorities Committee: Mondays after every second Committee of the Whole meeting Standing Policy Committee 1: First Wednesday of each month Standing Policy Committee 2: Second Wednesday of each month Standing Policy Committee 3: Third Wednesday of each month Standing Policy Committee 4: Forth Wednesday of each month The Clerk creates meeting schedules for each Committee on an annual basis. Schedules are approved by the respective Committees. A sample schedule of meetings and administrative requirements, based on a two month cycle, is illustrated in Appendix C. Manages meeting commitments of Members of Councif; considering Standing Committees are focused on policy development. Provides for coordination of schedules for Council and Standing Commfftee meetings. Saint John Governance Model 20 Strateg ic Decision-Making Model for the City of Sai nt Joh n Augus113, 2007 Special Meetinas Committees may schedule additional meetings by resolution or hold special meetings, but must give notice to all Members of Council and the public. Only business identified in the notice for the special meeting can be dealt with by the Committee. Meetina Times & Locations With the exception of Committee of the Whole meetings, Standing Committee meetings are held in the Council Chambers in City Hall, between 11 :30 AM and 1 :30 PM, unless otherwise decided by the Committee prior to the start of the meeting. Committee of the Whole meetings are scheduled by the Clerk and meeting times are advertised with the distribution of the agenda. Scheduled times will be strictly adhered to for all Standing Committee meetings, unless time extensions are approved by majority vote of the Committee. Additional meetings may be required to deal with time sensitive or emergency issues that arise within the mandate of a particular Standing Committee. Proposed meeting times coincide with the majority of lunch hours supporling the availability of Members of Council and the public. Working within time constraints fosters efficient debate of policy issues. Agenda Preparation and Distribution Meeting agendas for Standing Committees are prepared by the Clerk or a designate appointed by the Clerk. Administrative recommendations and reports, including those of ABCs and sub-committees, must be submitted to the Clerk on the Wednesday before noon prior to the scheduled date and time of the meeting for preparation of the agenda. Agenda meetings are held on the Friday prior to scheduled Standing Policy Committee meetings. The Chair, CAD, and Clerk discuss the Administrative reports on the agenda to highlight procedural issues and additional information that may be required for the Committee to make an informed decision. Standing Policy Committee agendas with supporting reports are distribu1ed to all Members of Council on the Friday (before 4:30 PM) prior to the scheduled meeting date. Council, Committee of the Whole, and Policy & Priorities Committee agendas with supporting reports are distributed to all Members of Council on the Thursday (before 4:30 PM) prior to the scheduled meeting date. Note: If dates for agenda submissions, meetings and/or distribution Designated days of the week have been proposed for administrative deadlines related to Council and Committee meetings to minimize confusion as to agenda submission and distribution dates. Discussion of procedural matters and reports prior to the distribution of the agenda ensures that Committee Members have adequate information to make good decisions. Agenda packages are distributed to a/l Members of Council to provide Members with the information and adequate time to make final decisions at the Council meeting or if they wish to attend a Committee meeting in which they are not a member. Saint John Governance Model 21 Strategic Decision-Making Model for the City of Saint John August 13, 2007 fall on a holiday, the dates move to the first business day available. The Clerk will notify all stakeholders of deadlines via e-mail at least one week prior to the change in dates. Table 4: Summa of administrative deadlines for a end as Agenda Submissions -_ ~! .!l:l~~l~~a~. _. _._. _. _._. __ _~~~ ~ !l.~d.~~ .P.~<?! !9_ ~_~~~~11. _. _. _ ~~<?~ _ _ _._ Agenda Meeting -_ ~!g_~g~_I!~~~ __ ___ ___ ___ ___ i~~..axP!~~_ ~~_Il.1~_~t!,!g_ _ _ _ _ _ _ _ _ _ _ ~ Q~ Q9_~.M_ Agenda Distribution - SPC meetings - CC I COW I PP meetin s 4:30 PM The proposed scheduled wifl provide addftionaJ time for Councillors to review and consider meeting agenda items. Standing Committee Reports and Minutes A Standing Committee report is generated for each Standing Committee meeting. The Clerk or designate prepares the Standing Committee report and minutes resulting from a Committee meeting for signature by the Committee Chair. Committee reports must be completed and signed before the agenda submission deadline of the next scheduled Council meeting. Committee minutes must be completed before the agenda submission deadline of the next scheduled Committee meeting. Standing Committee reports consist of Committee recommendations to Council and other decisions made by the Committee with some supporting information resulting from the debate. Committee recommendations are placed on the Council agenda by the Clerk under the signature of the Committee Chair. All Members of Council receive a copy of the Standing Committee report with the Council agenda package. All Members of Council receive a copy of Standing Committee minutes with the distribution of agenda information for the next scheduled Committee meeting. Prompt completion of Committee reporls and minutes ensures that recommendations to Council are addressed in a timely fashion. Public Notification for Standing Committee Meetings Public notice for Standing Committee meetings is made by notifying the local media and by posting notice of the meeting on the City of Saint John website (www.sainljohn.ca) accordingly: . Regular Meetings: three (3) days prior to the date of the meeting. Consistent with the City of Saint John's Procedural By-law. Saint John Governance Model 22 Strategic Decision-Making Model for the City of Saint John August 13, 2007 . Cancelled or Reschedule Meetings: at least twenty-four (24) hours prior to when the meeting would have started. . Special Meetings: at least forty-eight (48) hours before the date and hour of the meeting, Meeting Rules of Procedure All meetings are open to the public as per the City of Saint John Procedural By-law and the Municipalities Act [10.2(3)]. The rules governing Standing Committees will be set out in the procedural by-law. In general the following provisions will apply, . The rules governing the procedure of Council meetings and conduct of Members of Council shall be observed in Standing Committee meetings so far as they are appropriate. . The Chair shall preside at each meeting. In the absence of the Chair, the Vice Chair will preside. In the absence of the Chair and Vice Chair, the Committee will elect a Chair from the Members present for the duration of the meeting. . No member shall speak more than once until every Member who wishes to speak has spoken and then only to provide new information or seek clarification from the Chair, other Members, staff or delegations (i.e., the public).* . There is no limit to the number of times or length of time a Committee Member may speak to a motion.* . A Member of Council who is not a Member of a Standing Committee is encouraged to attend Standing Committee meetings and participate in the debate, however they: i. cannot be counted in determining a quorum; ii, cannot move any motion or vote on any matter; and iiL can only speak for a total of five (5) minutes on any given matter. . The Chair may make motions, participate in the debate and vote on all motions without leaving the Chair.* . A quorum for any Standing Committee consists of the majority of its members.'" . A motion is not required to be seconded.* . A motion to Put the Previous Question will not be perrnitted.* . Motions are passed with a majority vote of the Committee Rules marked with an asterisk (*) are consistent with the City of Saint John Procedural By-law under the section entitled Committee of the Whole procedure. All Members of Council are eligible to attend Standing Committee meetings and participate in the debate to aid Council in making better decisions (i.e., more knowledge and contributing ideas). Attendance of Members of Council who are not Committee Members at Committee meetings herps to eliminate duplication of debate at Council meetings, SainI John Governance Model 23 Strategic Decision-Making Model for the City of Saint John August 13, 2007 Members present, provided there is a quorum. . In the case of an equal division of votes, the Committee Chair does not have a second or deciding vote and the question will be deemed to have been decided in the negalive.* Public Presentations at Standing Committee Meetings Public presentations include those from a citizen or organization(s), The public may make a presentation in a meeting of Committee of the Whole, Policy & Priorities Committee, or a Standing Policy Committee. A member of the public may not make a presentation to Council, unless required by legislation such as a public hearing or it is recommended by a Standing Committee. Requests and Submissions for Public Presentations Public presentations must relate to the Committee's mandate and include: . responses to items on the agenda; or . prepared presentations on matters related to policy or those of public concern. Any person or organization wishing to make a presentation to a Standing Committee that is in response to an a!:lenda item must submit a written reauest to the Clerk outlining the conlent and the likely duration of their presentation by 4:30 PM on the Monday prior to the meeting. Any person or organization wishing to make a presentation to a Standing Committee must: . submit a written request to the Clerk outlining the content and the likely duration of their presentation; and . present the submission to the Clerk by noon on the Wednesday prior to the date of the Committee meeting. The Clerk will direct the written requests to the appropriate Committee Chair. No person or organization shall be given permission to address a Standing Committee on any subject that is not within the jurisdiction of the Committee. A benefit of a Council - Policy Committee based system is the ability of the public to participate in the decision-making process Making public presentations at Committee meetings ensures that the public is directly contributing to the policy recommendations that will shape the future of the community. Presentations not related to agenda items must be scheduled in advance (with the permission of the Committee) to ensure that Committee meetings are managed in terms of time and are relevant to the Committee's mandate. Time limitations continue to be placed on public presentations to support the efficient progress of Committee meetings. Additional time for clarification is gained through the question and answer period. Saint John Governance Model 24 Strategic Decision-Making Model for the City of Saint John August 13, 2007 Meetina Aaenda The Standing Committee may decide by majority vote to allow persons or organizations (providing they have submitted a request by the deadline) to make their presentations when the particular agenda item is being discussed by the Committee. For presentations that are not related to items on the Committee's agenda but are within the Committeets mandate, the Committee will make a decision whether or not to hear from the delegation at a future Committee meeting. The Clerk will schedule the public presentation on a future agenda and notify the person(s) or organization wishing to make the presentation of the Committee's decision. Time Limits Public presentations are limited to fifteen (15) minutes; however, there is no limit on the time for questions the Committee Members may have for the presenter. Presentations presented by more than one person must also stay within the fifteen (15) minute time limit. Public Correspondence Public correspondence received by Members of Council dealing with administrative or operational items is referred to the Cleric For correspondence requiring a response, the Clerk refers the correspondence to the CAD to distribute to the appropriate City department. For responses required by an ABC, the Clerk will refer the correspondence directly to the appropriate organization. All public correspondence is listed as information items on the agenda for Committee of the Whole meetings with the action(s) taken and/or the actual response provided. A response must be provided to the citizen. Responses are referred and distributed through the Clerk's office. During the Committee of the Whole meeting, Members of Council will be permitted a total of fifteen (15) minutes (collectively) to discuss public correspondence. Presentation and/or debate of day to day administrative matters before Councilor a Standing Committee slows down the decision-making process, compromising the effectiveness of the system. To ensure that Members of Council have a forum to demonstrate they are responsive to a range of public needs, time is permitted to discuss correspondence in Committee of the Whole. Saint John Governance Model 25 Strategic Decision-Making Model for the City of Saint John Augus113,2007 Administrative Inquires An administrative inquiry is a written request from a Councillor to the Administration through a Committee for the future provision of information or report related to policy development, review, interpretation, and/or performance evaluation. Administrative inquiries made at a Standing Committee meeting must be submitted to the Committee that would normally deal with the policy issue consistent with their authority and mandate. Administrative inquires cannot be made at Special Committee meetings. Administrative inquires must be made in writing and submitted to the Clerk by noon on the Wednesday prior to the scheduled meeting date and time to be included in the meeting agenda. The Clerk will immediately forward a copy of the written inquiry to the CAO. The CAO may answer verbally, in writing, or commit to providing a written response to the administrative inquiry during a subsequent Committee meeting. Standing Committees may give direction to the CAO only by resolution from the committee. The Chair and/or individual Members are not permitted to give direction to the CAD or to employees of the City. Agencies, Boards and Commissions Agencies, boards and commiSSions (ABCs) deliver services on behalf of the City in support of effective and efficient service delivery. City ABCs are directly accountable to Council and interact with Council through one or more of the Standing Policy Committees as defined by Committee mandate. The mandate, authority, membership, and service outputs are defined in a Terms of Reference for each ABC. Membership appointment will continue to be carried out according to the defined procedure* and approved by Council. City ABCs are required to report to Council through the appropriate Standing Policy Committees at regular intervals to outline their activities and periormance. The reports must indicate how the ABC is working within the policy, strategic directions, and priorities set by Council towards the achievement of a shared vision for the ABCs clearly serve a purpose within the governance framework defined for the City of Saint John. However, mechanisms must be in place to compel ABCs to work toward the strategic directions and prior;ties set by Council in order to achieve a common vision for Saint John. The procedure currently used to make ABC appointments wifl continue to be used in the new system. Saint John Governance Model 26 Strategic Decision-Making Model for the City of Saint John August 13, 2007 community. Budget allocations are dependent upon the submissions of these reports. ABCs contribute to the development of policy by submitting recommendations or information reports to Council through the appropriate Standing Committee. Ad Hoc and Sub-Committees Ad hoc Committees are created by Council to review and develop recommendations for special purposes (e,9., ward systems). The recommendations resulting from an ad hoc committee generally affect broad aspects of municipal government and the administration. Ad hoc Committees are accountable to Council. Sub-Committees are created by Standing Committees to review and help develop policy on specific matters that fall within a particular Committee mandate. Sub-committees report directly to the Standing Committee responsible for the work being carried out as defined by the Standing Committee's mandate. Terms of Reference For each proposed ad hoc and sub-committee, a Terms of Reference is drafted outlining the purpose, authority, and intended deliverables of the sub-committee's work. Appointments Membership appointments for sub-committees are made by the Standing Committee responsible for the sub-committee. Where applicable, the appointment process would follow the same procedures as defined for other civic agencies, boards and commissions. Membership for sub-committees is largely comprised of non-elected participants; however, Members of Council can request to be appointed if they so choose and it is practical. Appointees to ad hoc or sub-committees are not compensated for their service. Evaluation of Proaress For sub-committees whose work extends beyond one year, the Standing Committee to which it reports must review the progress of the sub-committee and make a recommendation to Council as to the continued formation and work of the sub-committee. Given the complexity of some policy matters and the need for greater public input, sub-committees are created to provide Standing Committees with advice on policy development. When dealing with sub-committees it is important to follow a review process to ensure that the work of the sub-committee is relevant; eliminating the possibility for the duplication of work and facilitating better management of outcomes. Saint John Govemance Model 27 Strategic Decision.Making Model for the City of Saint John August 13, 2007 Sub-committees must submit an annual progress report on their activities to the Standing Committee to which they report. Committee Dissolution Once the sub-committee or ad-hoc committee has completed the work defined in its Terms of Reference, the committee is dissolved. Ensures that committee mandates do not extend beyond their intended purpose. Saint John Governance Model 28 Strategic Decision-Making Model for the City of Saint John Augus113,2007 SECTION III: Practicalities of Implementation Council Commitment for Standing Committees In addition to Committee of the Whole, Members of Council are required to participate on two (2) Standing Policy Committees. Appointed Chairs of Standing Policy Committees are required to participate on the Policy & Priorities Committee. Balances Committee workload across all Members of Council. Ensures cof/aboration and coordination of policy development across each Standing Committee. Meeting Frequency Under the proposed Council - Standing Policy Committee model form of govemance the number of meetings that Members of Council will be required to attend will increase. The overall time commitment of Members of Council for attendance at Council and committee meetings will depend largely on the scheduling of meetings (Le., once or twice a month for committee meetings); effective time management of both Council and committee meetings; and the possibility of reducing future requirements for appointments of Members of Council to agencies, boards, and commissions (ABCs). In addition to regular Councif and Committee of the Whole meetings, Members of Councif will be required to attend at least two Standing Committee meetings and possibly a third meeting if the Member is a Chair of a committee (i. e., Policy & Priorities Committee) each month. Disciplined management of Council meetings and a mutual respect for governance roles should not result in unnecessary debate of Committee recommendations, theoretical/y reducing the time required to conduct Council's business. Although the commitment to attend Standing Committee meetings will increase, a reduction in commitments to attend ABC meetings should result in a reasonable time commitment. Public Access and Participation (Public Notice and Meeting Schedules) One of the benefits of moving to a Standing Committee form of governance is greater public participation in the decision-making process. In order to realize this benefit the public must have timely access to meeting agendas and the ability to attend and participate at committee meetings. Proper notice of matters to be discussed at committee meetings can be achieved by providing sufficient lead time for the publication Saint John Governance Model 29 Strategic Decision-Making Model for the City of Saint John August 13, 2007 of meeting agendas through a variety of media streams. However, ensuring this lead time is available requires discipline and strict adherence by both Members of Council and the Administration in meeting designated deadlines for the submission of items for the agenda. Ensuring that the public has the ability to attend Council meetings will require a balance between the availability of Committee Members and the public. Consideration must be given to the fact that both Council and the public are typically unavailable during normal business hours due to work commitments. Preparation for Council and Committee Meetings Effective and efficient decision-making requires all Members of Council to be adequately prepared for both Council and Standing Committee meetings. Understanding the issues prior to the meeting, provides for more focused debate. Ensuring Members of Council are adequately prepared requires sufficient lead time for the development and distribution of agenda materials for Council and committee meetings. Strict adherence to submission deadlines for Administrative and Committee reports/recommendations is vital to ensuring that Members of Council can adequately prepare, Members of Council can also ensure they are adequately prepared for the decision-making process by reviewing reports and minutes from committees they are not a member of, and in some cases actually attending the committee meeting. Although attending additional meetings would increase time commitments, it would ensure that Council makes better, more informed decisions. This would be parliculariy helpful for complex or sensitive matters. Transition to a New Governance Model Given that there are a number of fundamental changes being proposed in the new governance model, in order to ensure successful implementation and operation of the system, all stakeholders must recognize there will be a period of adjustment. Policy Development The effective implementation of the new standing committee system is based largely on the policy making role of Council. This will necessitate the development of a range of policies where none exists at the moment. Reference to the strategic direction and priorities identified for the community will support this process. Saint John Go'Vernance Model 30 Strategic Decision-Making Model for the City of Saint John August 13,2007 Ed ueation/Ori entatio n As with the implementation of any new system, there will be a learning curve for all those involved in the process. With respect to the proposed governance model, both Members of Council and the Administration will need to take adequate time to understand and become familiar with the new system. Even with a proper orientation and practical experience, it will take a number of months before matters consistently start to flow smoothly through the system. In support of system implementation, an orientation program will need to be designed and presented to both Council and the Administration during the initial implementation (and each time a new Council is elected). The program will highlight roles and responsibilities of all those participating in the system as well as the processes that support decision making. As the governance system evolves over time, the orientation program must be amended to reflect changes. Civic agencies, boards and commissions, as well as the public and various community stakeholders must also be educated on how to access and participate within the system. One of the goals in implementing a new governance model is to increase public awareness and participation in decision-making, therefore, changes made to the system must be seen as a benefit and not a barrier to public participation. System Interoretation Council must recognize that some of the matters that will be addressed within the system may be very complex or so unique there is no clear direction as to how the matter should flow through the system; highlighting the gray area that inevitably exists in any decision-making system. Committee chairs must work with the Administration to determine the best course of action to deal with such issues, without compromising the intended purpose of the system. The system must continue to focus on setting the strategic direction for the City in support of achieving a vision for the community. ResoectinQ Governance Roles and Outcomes Regardless of the type of system designed to support Council's decision-making process, the success of the system largely depends on the understanding and commitment of those that have a responsibility for making the system work - Members of Council and the Administration. Education and orientation about the proposed standing committee system wi/{ be required as part of the transition process. Many municipalities reporl that achieving this {evel of respect is at times difficult; however, it is vital to ensuring a more meaningful role for the elected officials in working on behalf of their constituents and realizing the community vision. Saint John Governance Model 31 Strategic Decision-Making Model for the City of Saint John Augus113,2007 Mutual respect for these roles, particularly between Council and Standing Committees as well as Council (including Committees) and the Administration is paramount to the successful implementation and operation of the system. Patience must also be afforded to the processes that have been designed to support effective and efficient decision-making. These are processes that focus the attention of Council and its committees on strategic and policy matters, rather than on administrative detail. For some, this may represent a subtle but significant shift in thinking with respect to decision-making. System Evolution In the initial implementation, it is recommended that no changes are made to the proposed model during its first eight-teen (18) months of operation. After the first eight-teen (18) months of operation, the system should be evaluated and improvements recommended for Council's consideration. Recommendations would come from the Policy & Priorities Committee under its mandate. Periodic evaluation of the system must be undertaken to ensure the system is meeting its governance responsibilities. Regular review of system operations and recommendations for improvement must be made at scheduled intelVals (e.g., at the half way mark of each term of Council). These improvements would address structure and process issues. A temporary moratorium on changes helps to avoid making incremental adjustments, without proper review and experience, which could negatively impact the operation of the system in meeting its intended governance goals. As Council achieves their planned strategic outcomes or the needs of the community change, Council must consider a review of committee mandates and alignment, and make the appropriate recommendations that will ensure the decision-making process continues to support the achievement of the vision for the community. Each new Council will likely need to consider committee mandates as they set their priorities. However, interim changes many also need to considered. Relationships to ABCs and Existing Committees of Council Once the initial implementation of the proposed governance model is complete, consideration must be given to the requirement for ABCs and Committees of Council and their relationships with Council. The future requirement for each ABC will need to be addressed and an evaluation of each of the committees will determine which ones become redundant under the new structure. In considering the needs and relationship to ABCs and existing Committees of Council, the need for appointments of Councillors to Saint John Governance Model 32 Strategic Decision-Making Model for the City of Saint John August 13, 2007 many of these entities must be carefully reviewed. Those committees that are statutory in nature will still require Council appointments, however, new reporting relationships will preclude the need for Councfllors to participate in some ABCs given their roles as a Councillor and Standing Committee Member. Additional Funding Requirements The implementation of a new governance model will require additional funding; both initially and in the long term. Administrative Staffina With the introduction of additional committee meetings, there will be an increase in the support required from the Administration, specifically in the Common Clerk's Office. Support includes the preparation of agendas, minutes, committee reports, and attendance at meetings. Supplemental administrative staff will be required (Group 3 plus benefits). Depending on legislative requirements, additional costs may be incurred with the need for French translation. Plannina Resources The effectiveness of the proposed system is dependent on Council's commitment to achievement of the Community's longterm Vision. A requirement for additional resources (internal or external) to support policy and planning activities (e.g., public consultation) of Council and its committees may be necessary. Public Notice. Awareness. and Education An increase in meeting frequency may result in increased advertiSing costs related to providing public notice of meetings (for methods other than the City's website, which is not accessible to the entire public). Ensuring that the public is aware of the work that takes place during committee meetings (In support of transparency and accountability), may result in additional costs for televised services or web broadcasting. Developing and distributing educational material for the public to help them better understand the benefits and goals of a new system, as well as how decisions are made and how they access the system will also require funding ($25,000). SainI John Governance Model 33 Strategic Decision-Making Model for the City of Saint John August 13, 2007 Meetina Locations At some point consideration must be given to a renovation of the Council Chambers. The configuration of the Chambers must better support the decision-making processes outlined in the model and reflect the roles and responsibilities of the participants. Initially, Committee meetings will need to be held in the Council Chambers due to the lack of adequate facilities to accommodate the public, staff, and media I broadcasting requirements. Renovations to an existing room or rooms will be required to adequately address these issues. By-law and Legislation Changes The implementation of a new governance model will require changes in the City of Saint John's Procedural By-Law. The structure and processes that define the system must be incorporated into the by-law. As part of revisions to the By-law, Council must also consider and adopt detailed Terms of Reference for each of the Standing Committees identified in the system. Revisions to the City Government Act may also be considered as it is outdated in many respects. Saint John Governance Model 34 Strategic Decision-Making Model for the City of Saint John August 13, 2007 SECTION IV: Conclusion The Council-Policy Committee based govemance model proposed for The City of Saint John provides Council with the basic building blocks to ensure good governance and decision-making and provides a framework to help the City achieve its strategic goals (i.e., desired outcomes), The system focuses Council's decision-making on developing polices and evaluating the implementation of those polices in an effort to achieve the long-term vision and related priorities established for the City. The new Committee structure and govemance processes must in the end stand up to careful scrutiny by the citizens it is designed to serve. If the resulting Committee system ultimately adopted by Council, is in its structure and functioning, more democratic in its approach, more transparent to public scrutiny, more responsive to community needs and concerns, strong in accountability for its actions, grounded in the law, more accessible to citizens and interest groups, and/or ultimately more effective in its outcomes than the existing structure - we will have succeeded. Saint John Governance Model 35 Strategic Decision-Making Model for the City of Saint John August 13, 2007 SECTION VI: References Alexander, W, Baxter, S., Glover, B., Kelly, D., Maurice, R., Westwater, D., and Wong, N., 1997. Developing a Council-Committee Structure for the New City of Toronto, City of Toronto. Antoft, K. and Novak, J., 1988. Grass Roots Democracy, Local Govemment in the Maritimes, Dalhousie University Halifax, pp 155-157. Cape Breton Regional Municipality:, 2006. Cape Breton Regional Municipality Resolution RC4 Committees, CBRM. City of Barrie, 2006. By-Law 1990-01, as amended To Govern the Proceedings of Council. City of Barrie. last Revised Unknown. URL: http://www.citvbarrieon.cal. Last Visited 10/1212006. City of Calgary, 2005. A By-Law of the City of Calgary to Regulate the Proceedings of Council of the City and Its Committees, City of Calgary. City of Calgary. Last Revised Unknown. URL: htfp:l/W'hW.calaarvca. last Visited 10/17/2006. City of Edmonton, 2004. City of Edmonton By-Law 12005 as Amended The City Administration By-law, City of Edmonton. City of Edmonton, 2006. City of Edmonton By-Law 12300, As Amended Procedures and Committees By-law, City of Edmonton. City of Edmonton (Office of the City Auditor)., 2007. City of Edmonton Governance Review, City of Edmonton. City of Edmonton, 2005. Edmonton - How Your Cit Works, City of Edmonton. City of Fredericton, 2004. A By-law Respecting Administration and the City Council, City of Fredericton. City of Fredericton, Last Revised Unknown. URL: http://W.hWfredericton.ca. Last visited 10/41912006. City of Guelph, 2006. A By-law to provide rules for governing the order and procedures of the Council of the City of Guelph, City of Guelph. City of Hamilton, 2004. A By-law to Govern the Proceedings of Council and Committees of Council, City of Hamilton. City of Hamilton, last Revised Unknown. URl: http://www.hamiltoncatch.oralhowcitvworks.thm and http://www.hvhamilton.calmvhami Iton/CltvandGovern mentlCitvDepartmentslCorpora1eServiceslCle rks/... las1 Visited 10/6/2006. City of Kingston, 2002. A By-law to Establish the Position of Chief Administrative Officer, City of Kingston. City of Kingston, 2004. By-law No. 98-1 Council Procedural By-Law, City of Kingston. City of Kingston, 2004. By-law to define the composition and terms of reference for committees established by the Corporation of the City of Kingston, City of Kingston. City of Kingston. Lasl Revised Unknown. URl http://www.citvofkinaston.calcitvhalllcommiltees/standina.asp. last Visited 10/6/2006. City of London, 2004. Council Procedure By-law, City of London. City of london. Last Revised Unknown. URLs: hltp:llwww.londoncaICouncillstandcom.htm. Last Visited 8/23/2006. City of North Bay, 2003. Procedural By-law, No. 2003-139, City of North Bay. City of North Bay. last Revised 2007. URl: hltp:/lwww.citv.north-bav.on.calci1vhall/council/. Last Visited 8/3/2007. City of Ottawa, 2003. By-Law No.2003-XX, City of Ottawa. City of Ottawa. last Revised Unknown. URl: htto:f/www.ottawa.calcitv halllmavor councillindex en.hlmL Last Visited 8/23/2006. City of Port Coquitlam, 2004. By-law No. 3435 A By-Law to Regulate the Procedure at Council Meetings for the City of Port Coquitlam, City of Port Coquitlam. City of Port Coquitlam. last Revised Unknown. URL: http://www.Dortcoquitlam.ca/Citv Hall/. last Visited 10/12/2006. Saint John Governance Model 36 Strategic Decision-Making Model for the City of Saint John August 13, 2007 City of Richmond, 2006. Council Procedures By-Laws No. 7560. City of Richmond. City of Richmond. Last Revised Unknown. URL: http://wwwcms.citvrichmond.bc.ca. Last Visited 10/6/2006. City of Saint John, 2006. By-Law Number M-5 A By-Law Respecting the Procedures of the Common Council of the City of Saint John, City of Saint John. City of Saint John, 2006. Council ~ Committee System: A Discussion Paper, City of Saint John. City of Saskatoon, 2006. The Council and Committee Procedure By-Law, City of Saskatoon. City of Saskatoon. Last Revised Unknown. URL: htto:/fwww.saskatoon.ca/orQ/clerks office/council!. Last Visited 9/28/2006. City of SI. John's, 1992. By-Law N01273 Rules of Procedure, City of St. John's. City of Stratford, 2002. Procedural By-Law 216-2002, City of Stratford. Gity of Stratford, Last Revised Unknown. URL: htto:/IwwwcitV.stratford.on.cafsite stepstocitvhall/council.as[J. Last visited 10/6(2006. City of Winnipeg, 2005. City of Winnipeg City Organization By-Law No. 7100/97, City of Winnipeg. City of Winnipeg, 2004. City of Winnipeg Procedure By-Law No. 5400f90, City of Winnipeg. City otToronto, 2007. City of Toronto 2007 Budget Process and Schedule (Presentation), City of Toronto. City of Toronto, 2006. City of Toronto By-Law No. 1045-2006, City of Toronto. Corporate Policy & Planning Division, Metro Chief Administrator's Office, 1997. An Overview of Decision Making Structures in Major Cities Across Canada, City ofToronto. Cuff, G.B., 2006. The Use and Abuse of Committees (Part1 ), Municipal World January Edition, pp. 36-36. Cuff, G.B., 2006 The Use and Abuse of Committees (Part 2), Municipal World February Edition, pp. 33-34. Cuff, G.B., 2007. Govemance Practices That Work, Municipal World April Edition, pp., 61-62. Cuff, G.B., 2007 What does Effective Municipal Corporate Management Look Like?, Municipal World April Edition, pp. 37-40. Cuff, G,B., 2007. Impact of the Governance Model, Municipal World May Edition, pp 39-40. Graham, J., Amos, B., Plumptre, 1.,2003. Principles for Good Governance in the 21st Century Policy Brief No., 15, Institute on Governance. HalJsmith, G., Layke, C., ,Everett, M., 2005. Taking Action for Sustainability: The EarthCA T Guide to Community Development, Global Community Initiatives, pp. 11.13. Independent Commission for Good Governance in Public Services, 2004. The Good Governance Standard for Public Services, OPM and CIPFA. McGregor, Dawson and McGregor, 1971. Democratic Govemment in Canada, University of Toronto Press, pp 3-12. Municipal Research & Services Center of Washington, 1999. Local Government Policy Making Process. MRSC, Province of New Brunswick, 2005. Municipalities Act, Province of New Brunswick. Strategic and Corporate Policy Division, Chief Administrator's Office, 2003. City of Toronto Council Governance Review Discussion Paper, City of Toronto. Transition Team from the Metro Area Chief Administrative Officers, 1997. Design of the New City of Toronto: An Organization Review of Issues and Options, City of Toronto. Saint John Governance Model 37 Strategic Decision-Making Model for the City of Saint John: Appendix A Draft Version: Augusl3, 2007 OIfCl') z....l g~ 0C!) 5 ~ z ::::> ~ ~ o () O!f o LLI ~cn u~ en UJ E D:: o i:2 a.. E 19 ~ ~ ~ E ~ ~ ~ o (9 B ~ '(3 c: ::::::l o (.) u U) - UJ C!):::iE UJo S~ I-~ 00 CoO W U ~ w en ... .9 :Q S II _ .1 , , I , , I , , , I ....-r-................ I , , I (I] o lD <( (I] c Q) N := (3 ~ Q) .:: ~ "'1;1 ,2 rJ) ~ ] ~ -"" 0 Q. m ~ ~ Q) ~ ~ ,s; uE o ~ Q) 15 "'1;1 <= co :!: Cll ! :!l 'E c: ~ <n E 'E :l 5 8 ~ ~~.~ Cllcc:::15 ~ 1tI ... ,S; tI:l E ~ E C :::I tI:l 0 ii::I:--IZ . . . . Q) li E (II )( uJ :t:: tI:l i1S II) lii C) (II <= co ::2: ! 'S ~ f ~ otI >. .Si ;f j '1:) c <<I ~ CI) ~ 'C 1 :5 '!j Q. fi i ~ ~ ~ ; .I: .s i e '" i 1! ,I .5 j CD :5 'C 1 <:: ,Q U <:: :::l u.. ~ .:: '" E '" ~ c:: ..J::: o ---, ....... c:: CO CJ) - o ~ ....... G Q) ..J::: ....... L... .E Q3 "'C o ~ C) c: :..s2 CO ~ I c:: o '00 T5 OJ o U '0, (]) ~ U5 Q).!!:! 4) Q) 0 ~ =.1: (\l 'E;: m ~~ 0'0 en UJ c frl c ~ Q) C3 c:: o E E o () f d C/J ..... -. I I I I I E w iii ....I Q. iI .5 1l c; J!! ~ 5 I ~ CD r= ~ :z Saint John Governance Model , " o c z UJ :::E :E o M IE 38 Strategic Decision-Making Model for the City of Saint John: Appendix B Draft Version: August 3, 2007 c: .J:: e ~ +-' c: ctl C/) l+- e ~ () Q) ..c: +-' L.. J2 Q) ""C o :2 <J.) o l:: ~ ~ Q) c:: o C) Q) +-' ~ +-' en ~. I........;....... ~1 ~lJ l f i ~ ;c i ~ . Saint John Governance Model 39 S1ra1egic Decision-Making Model for 1he City of Saint John: Appendix D Draft Version: August 3, 2007 Proposed Scheduling of Council and Standing Committee Meetings Including Administrative Requirements (2 Month Cycle) December 31 January 1 3 4 Common Council Agenda Submission Agenda Meeting SPC2 COW f SPC2 Agenda Distribution COW A enda Distribution SPC2 1 B 9 10 11 Standing Policy Cornmtttee of Committee 2 the Whole Agenda Submission Agenda Meeting SPC3 CC f SPC3 Agenda Distribution CC A enda Distribution SPC3 14 15 16 17 18 Standing Policy Common Committee 3 Council Agenda Submission Agenda Distribution COW f PP Agenda Meeting SPC4 COW f PP f SPC4 A enda Distribution SPC4 21 22 23 24 25 Standing Policy CornlriIll$eof Policy & Committee 4 the WholI Priorities Agenda Submission Agenda Distribution CC CC 28 29 30 31 February 1 Common Council Agenda Submission Agenda Meeting SPC1 COW I SPC1 Agenda Distribution COW A enda Distribution SPC1 4 5 7 8 CorririlittSeof the Whoi8... Agenda Submission Agenda Meeting SPC2 CC f SPC2 Agenda Distribution CC A enda Distribution SPC2 11 12 13 14 15 Standing Policy Common Commillse 2 Council Agenda Submission Agenda Distribution COW f PP Agenda Meeting SPC3 COW I SPC3 A enda Distribution SPC3 21 19 20 21 22 Standing Policy ComrriIttee of Polley & Committee 3 the Whole Priorities Agenda Submission Agenda Meeting SPC4 CC f SPC4 Agenda Distribution CC A enda Distribution SPC4 25 26 27 28 March 1 Standing Policy Common Committee 4 Council Agenda Submission Agenda Meeting SPC1 COW I SPC1 Agenda Distribution COW A enda Distribution SPC1 CC Common Council Every second Monday a_____.___________________________________________________ COW Committee of the Whole Alternate Mondays to CC ________________~_~_~_~_W_~~.~r___.~.___._~_~_.~~_~_____~_ PP Policy & Priorities Committee Every second COW meeting ------.-------.-------------------.-------.--------------- . _~~~~. _ ~~~~~~.~?~~_~~~~!!'::.:. _ :~~! ~~~~:s_d~y_0 ~~~ .~~~~ ___ SPC2 Standing Policy Committee 2 Second Wednesday of the Month ---------------------------------------------------------- SPC3 Standing Policy Committee 3 Third Wednesday of the Month Agenda Submissions :!-)~~~~i~~~ ___ _ __ ___ _ _ _~:<!~e.~~J _~ri_~ _t~ _~t~~g_ _ _ ~?~~ _ _ _ __ Agenda Meeting : ~.I:~ ~~~~~~~ _ _. __ _ _ _ _ __~ ~~rp~?~ !~~~i_~_ _ _ _ _ _ _2 ~~_o_ ~~__ Agenda DistribuUon - SPC meetings Friday prior to meeting - CC ! COW I PP meetings Thursday prior to meeting ----------------------~-----~--------------------------- Report & Minutes - SPC meetings - COW f PP meetings 4:30 PM Wed nesday prior to the next reasonable CC meeting Noon SPC4 Standing Policy Committee 4 Forth Wednesday of the Month Saint John Governance Model 40 .. Strategic Decision-Making Model SAfNT JOHN I Proposed New Governance Model it Principles of Good Governance !;A.JN't'JOHN I , Legitimacy & Voice Democratic Accessible and Representative Direction Strategic Vision Performance Responsive and Effective Efficient Accountability Accountable Transparent Fairness Equity Rule of Law Vlllan 2O'f5: SafntJohl'l -GC~lT1anc. P~CIj-.:::t ~ .sfofN1'JOHN I ~ Desired Outcomes . Common Purpose . Clear Direction . Service Alignment . Clear Accountability . Improved Decisions . Citizen Participation . Better Service . Effective / Effici enl VIt:tOtI201i5: S.h1.John Gov.-T1.ncePrqleet ;@ 1 ~ Potential Benefits and Pitfalls SAINT fOHN . Potential Benefits o Specialize o Interests o Citizen input o Public opinion o Speed up wark o Informal atll1<lsphere CJ Participation staff o Better decisions o Accountability o Responsive/transparent . Potential Pitfalls D Ignore vision o Duplk:ation effort o Fregmented Outlook o Buck passing D Neglect commun ity [J Interlerence in oper.atiDns o Conflict jurisdiction C Time lines VbJon 201'$: SIIlnlJoon Gowm.ne+:P~ ~ ~ Design Principles SAINT rnHN I . Embrace the principles of good governance . Realize desired governance outcomes . Focus Council on policy and setting strategic direction . Achieve the community's vision . Realize the benefits, avoid the pitfalls \/181011 201 5: Sal~t JOO" OO\Oemaooe Pf'(Ijeet * ~ Model Features SAINI JOHN I . Anchored in Achieving Community's Vision . Focused - policy and strategic direction . More active/involved roles for Councillors . Enhanced public participation . More effective decision-making process - Improved effectiveness and efficiency in operations -Improved accountability and transparency Viail:lrl 2(]1~: S.in1 Jct11\ GovemlnCII F'~C1jKI ~ 2 @- Community Vision - The Future !j!l.~NT !OUN I I . Determining the direction municipaHty snould move . Establi5hing the crilicallong-1erm goals - Fit Direction . Identifying & Prioritizing Objectives - Value to C~izens . Oeveloplng strategies to succeed . Monitoring Outcomes and Progress ~ V~ ..015: Sii'rtJahn Gow.mllllrll~f1P~l ~ Vision Context MJN1" 'OliN I ~ [Vision & Goals ]~--- Community V [ Priorities ] ~ --- Council ~ [ Outcomes ]J_ Standing Committees ~ I Services ]~- Administration V~r1 201$: S.int Jar-In Govemlllnce-Prcjlllt:1 ~ ~ Political Role - Policy Tools SATNi'jOHN I . Representing Views of Citizens - Vision & Goals . Setting Priorities to Allocate Resources . Choosing between Alternate Courses of Action . Monitoring Implementation & Progress . Answering for these decisions . Responding to Constituent Concerns IIlWJn ;l:O~S; Sint John G:rv8manc:&'-rnjl!Et ~ 3 $ Policy Focused System :;I\.JI'JT JOHN I , . Policy... a governing principle, plan or direction that guides or influences future decisions . Council makes public policy decisions; others implement Policy Administration Adopt a budget and set lax rate. Propose a budget Analyze altBl'natives. Spend within limits Adopt a vision and goals for the Deliver servlc6s in support of community and set strategic direction, Council's strategic direction. Adopt policy allowing or pro~ Ibitlng Enforce terms of parking poilcy. off.street parking 'JiIJor1201L"i: SlIIiTtJmn ~an,"l:oP~OO\ ~ o Political Organization SA!N1' 'OHN I c=::::::J Governance Roles c===J Admlnlstrativa Roles V~ 201~: S"lnt JoI1... Gowmll\C-1Il F'roJ~1 ~ ~ Committee Composition MIN1'JOH.N I . Only members of Council appointed to SPCs . Mayor is ex-officio member (no vote; no quorum) . CAO has the right to attend all SPC meetings . Committee of the Whole: All Members of Council . Policv & Priorities: Mayor (Chair), Chairs of SPCs . Standinq Poticy Committee: 5 Members of Council VI!-IOI'1. :2Q1!o: S4ll'll Jol'ln GDYftT'l8nQ" POtcJ&:::! ~ 4 ~ Appointments SrHNr )OH N I . Chairs appointed by Mayor . Committee Members appointed by Council . Vice Chair elected by Standing Committee Membership . A Member of Council can only chair one committee at any given time . A Member of Council cannot chair same Committee in consecutive rotations Vi9ion 2D16: Sltinl John Gcv8m.r.l:. PrQJ-.el ~ ~ Committee Rotations SAINl IOHN I . Chairs are rotated every two (2) years . Membership is rotated every two (2) years . Two (2) Members remain on the Committee with three(3) new Members added . Rotation occurs midway through Mandate (June) . Appointments according to established process Vision 2015~ S.il1lJ<l~n Gowrn.n~IIIP~ ~ ~ Standing Committee Mandates SAINT IOHN I I . Standing committees make recommendations on policy within a specified mandate . Broad mandates define the purpose and authority (sphere of jurisdiction) of each committee . Standing Committee mandate options; C1Departmental Alignment DSustainability Needs DService Based Alignment DOutcome Based ~cnro'5:S~I~n~~~ ~ 5 ~ Public Presentations SAINT IOHN r . Public presentations are made at Committee meetings . The public des not make presentations to Council unless: o Required by legislation (I.e., public hearing) o Recom mended to Council by a Committee . Requests to make public presentations require a written submission to the Clerk Vlllon 20; 5: SalnlJelhn GawmllllneiBo ~roftoct ~ * Termination MINT IOHN . Non - performance . Personal Agenda . Not calling Meetings . Not Representing Views Committee . Not Attend ing . Procedures . Rare Occurrence Viuion 20115: Slail"ll)<l~ GQ\IIIIIT1.lIIIn...P~1 ~ o Governance Example ~INT IOHN r .... Council ~ CammittElie -+ ... Adminis1rRbon -+ Staff + + IJI~oo 201-5: S.il'u Jonn Govemllnce- Prcjll!lCt -l>- ~ 6 ~ Governance Example SMNT IOHN I DECIDES (PriQriliBs) RECOMMENDS (OuloomBI!;) IMPLEMENfS (Str-tlkil-glasl SBr\licBI!:) Vial..... 201'5: Sl;Iirlt...klMl '3.....-nlilno;:;ll Prqoct .lit ~ Decision-Making Process SAINT r(JI-I.N I Fundamental ChanDa: Access to the Strategic Decision-Making Process is through Committees VIsio!1201": S.InIJohn Govem.I'1ee-ProJec:t ;jf. ~ Decision-Making Process MINT IOHN I ... - ----- - -- ----- - ------ - ------- -., : ' C(Jorr1m~n C1~rk ~"""'rmIr,lIm -""".... ~1r>Gt'lmM1l'lft ...........tIlrily , , _____L______ Commlttll of thilW"~ Policy & Prtorlll... C.mmm., St.rdIng PoUcy CIloNhlltIW F'fIIoC"llrn ~n1IIt>>IjlM5 "P~~~~ I'BCOl1lrllardelilYlli.~ conI-idotn;pIJ~inpt}: ~ V~IO!'I ;l:o,~: S.ln' JClhn C1o".m.ncI Frc:lec:l 7 ~ CAG Role SArNT JOHN I VloIon 2015: S.Ie'ltJotIl1 -GolOem..l1co PraJI'C1 . Policy advice Council/SPCs . Provides broad perspective . Analysis of issues . Leadership . Coord ination . Accountability . Submits Budget . Works with community . Initiates programs ~ ~ALNT ~(}UN I ~ Administrative Inquiries . Administrative Incuiry: written request from Committee Member for information/report related to policy . Requests made through Committee to CAO . CAD answers verbally, in writing or commits to written response . Only SC can give direction to CAO by resolution of the Committee . No authority to give direction to the CAD or employees by Chairs or Committee members IJI""<l'n 2{l11'i: SlIi"tJ,,"" Gm."m<nrn'O P'oject * ~ Meeting Schedules StUNT JOHN I o Policy & Priorities: . Standing Committees meet once a month o Standing Policy 1: o Standing Policy 2: o Standing Policy 3: DStanding Policy 4: Mondays after every second Committee of1he whole meeting 1" Wednesday each month 20d Wednesday each month 3c<i Wednesday each month 4th Wednesday each month Vlllilon 2015: S.II"II Jo,',n Qawm~ PrafeGt . Between 11:30 AM and 1:30 PM In Chambers ~ 8 ~ Agenda SMN11miN I . sc - reviewed by the Chair, CAO, Clerk during agenda meeting . Agendas distributed to All Members of Council Agenda Submissions - All meetings Wednesday prior to meeting Noon "r_r'r'~.. . . . ..._ .._ _..,. . '. _ ...__ _ _ r . _ . . ._._ ... . _ .. _.. '.n Agenda Distribution .SPC - cel COWl PP Friday prior to meeting Thursday prior to meeting 4:30 PM \lltloo 2(J1o: Sllir'll.J.chn G~iII'K''' Pr'l:Ije-:=t * ~ Public Correspondence , . Public correspondence - responses may be discussed at COW meetings as informalion ilems VI~I(ln :101E-: Slln~ JOhn COvtomlnC41 PrcllKl ~ ~ Ad Hoc & Sub-Committees SAIN1' rmm I . Ad hoc Dereated by Council to review and develop recommendations for special purposes (e.9., ward system) DReport to Council . Sub-Committees DCreated by Standing Committees to review and help develop policy on matters that fall within the mandate DReport to Standing Committees Vi&m :1015: S.!Iint Johl-i ~ll'1eIll-ProJ'Kt ~ 9 ~ Alternatives !;rHN1'10f-lN I . Selection of Chairs DMayor Nominates - Council Approves . Term of Deputy Mayor o 2 year term - 2 rotations . Scheduling of Meetings o Accessibility and Availability Vrlll:ln 20115: S.rntJohn GI:Il".~...e:e ProC:ljee! *- ~ Principles of Good Governance SAINT lORN I , Legitimacy & Voice Democratic Accessible, Representative Direction Strateg ic Vision Performance Responsive, Effective, Efficient Accountability Accountable Transparent Fairness Equity Rule of Law Vl:&.lor'1 2015: Sllnl John GOlJl!omlnCI ProJilGt :t fY * ....isi~ 2015' 5eirllJohn Governance F'rn;ect 10 o Existing Governance Model MJNrlOltN I I ~ ....I"' ~ ~I : : 1=::=::::"._ I -~~~-~_::! --~ - -- - . i .= e;- _.m. --- -.. --...-- ...."r....'. V~IPi~ 2l'JHi; !::l.iI'lIJ<:ihn GO.....l'unc.Prc+eet ~ 0" Agencies, Boards & Commissions SAINT roliN [ . ABCs deliver services behalf of City . ABCs contribute to policy development with recommendations and information . City ABCs directly accountable to Council. . ABCs will be reporting through one or more of the Standing Policy Committees (depending on SPC mandate) . ABC mandate, authority, membership, service outputs defined in Terms of Reference VII-ICl'1 :2a'~: S..~ntJohn GC\llilmancAPro;.ct :t *" Agencies, Boards & Commissions SMNl' JOHN I . Required reporting to Council through one or more SPCs on: o Aofiviti.. and performanoe o How aclivities cO<1tribule to Council's poiicy, strategic direction and priorities . Budget allocations dependent - reporting, performance, outcomes and alignment with strategic direction . Requires individual review to determine real need . Councillors should be Governors not ABC members YImr1201!5: Saln;Johrt Go~m~r1<<1 prcJl'C-l * 11 it Practicalities of Implementation :So\1Nl'IOl1N I I . Council Commitment . Support of Councillors . Meeting Frequency . Public Access and Participation . Learning Curve . Stability during Transition . Relationships to ABCs . Funding . Leaislative Chanaes I L ~ l~ ~ * 1J1~ICt1 :101/i: S.arnl Jo-hr'l OQlHlmMtCil!l ~rw:.ll!l<:.;t o Big Picture s....mt" lUHN I . Four SPC - One Coordinating . Respects Governance Principles . Anchored in Achieving Vision - Policy Focus . Rotations - Exposure, Expertise, Interest . New Process - Access Point is the SPC . New Roles - Chair, Member, Councillor . Better Outcomes - Performance, Accountability Vrlir;ll1 201!S: s..l~ J(lhfl GOV<<T\.neit p~ * ~ Next Steps SMNr JOHN I . Council direction 01$ a committee system better for the City and Citizens? o What improvements are req uired DTiming of implementiltion . Implementation o Finalize committee mandates o Bylaw amendments Vicion 2Oh'i: SlIInlJmn ~mrol'l(l~ Project ~ 12