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2008-10-09_Agenda Packet--Dossier de l'ordre du jour�1 �i 0 City of Saint John Common Council Meeting Thursday, October 09, 2008 Committee of the Whole 1. Call to Order 6:00 p.m. 8th floor boardroom 1. Building Canada Fund Application Action Plan for Safe, Clean Drinking Water 2. Standing Committee System (a) Presentation (b) Vision 2015- Final Report (c) Discussion Paper on Council Committee System (d) Strategic Decision Making Model Report (e) Draft Committee System By Law % � / / / / / / / / / / / / / / / / / / / / / / / / / / / / / / / / / / / / / / / / / / / / / / / / / / / / / / / / / / / / / / / / / / / /% REPORT r ` COMMON COUNCIL M & C 2008 - 307 October 7th, 2008 His Worship Mayor Ivan Court And Members of Common Council Your Worship and Members of Council, SUBJECT: BUILDING CANADA FUND APPLICATION ACTION PLAN FOR SAFE, CLEAN DRINKING WATER INTRODUCTION v Y &� llie,dty oaf Sa'su�u ,Idifl, Without water communities do not exist. Quality of life, good health, natural ecosystems and economic prosperity are all inextricably linked to water. How can Saint ,John's truly exceptional water resources best be channelled for the greatest good? Will the future equitably balance the water demands of people and industry with that needed by the environment? The life- essential water service must be operated to ensure that Saint ,John is able to lead the nation as an example of a sustainable community. Saint,John is approaching a new and exciting era, one of anticipated social progress and economic growth. As it does, it will seek to put in place the very cornerstone of community life - safe, clean drinking water. The way ahead, however, will not be easy; in fact, the challenges could seem overwhelming. The level of commitment and financial investment needed to make the water system right will be great. Recognizing this, Saint ,John Common Council has made safe, clean drinking water its priority; understanding the immeasurable value of quality water services to the community. Purpose of the Report This report sets out the initial funding application to the Canada - New Brunswick - Building Canada Fund to support the Action Plan for Safe, Clean Drinking Water - a direction that aligns service to customers with eco- sustainability, conservation and delivery of a quality that meets the biological and practical needs of end -users ... at the best possible cost to ratepayers. SAFE, CLEAN DRINKING WATER 2 BUILDING CANADA FUNDING APPLICATION OCTOBER 7' ", 2008 TO SUPPORT SAFE, CLEAN DRINKING WATER PAGE 2 Saint ,John is one urban Canadian community facing serious drinking water issues. These extend beyond the need for modern water treatment facilities. The ability to adequately assure the quality of drinking water delivered at the tap extends beyond treatment facilities; also required are extensive upgrades and reconfiguration in the distribution (transmission) system, sustaining the quality and yield of potable water sources, reducing overall levels of consumption and investing adequately in the ongoing renewal of aging infrastructure. The primary responsibility for these costly, but essential, investments will rest with users; first, to pay a fair share of upgrade costs, and then to demand undivided attention to the direction of this life- critical service, innovation and continuous improvement, and fair, equitable, fully measured pricing of services. BUILDING CANADA PLAN - NEW BRUNSWICK The Building Canada Plan is available to support long -term funding for drinking water infrastructure projects that: na Improve drinking water safety, management, reliability and efficiency; na Increase the number of households with access to safe drinking water; na Improve source protection and management of drinking water supplies; and na Improve conservation of water. The Building Canada Plan is the Government of Canada's infrastructure program designed to advance national priorities important to all Canadians; namely, a stronger economy, a cleaner environment, and better communities, while addressing local and regional infrastructure needs. It offers a series of funding components and is covered by the Canada - New Brunswick Framework Agreement signed by the Government of Canada and the Province of New Brunswick on December 7, 2007. Building Canada recognizes that an important determinant of a community's liveability is the safety and reliability of its drinking water - an infrastructure issue of growing concern in communities across the country. Funding will focus on improved treatment standards that emphasize protection of human health. In addition, projects will have to be supported by measures to reduce demand, improve the management of drinking water infrastructure, and enhance the sustainability of drinking water sources. This philosophy aligns entirely with the direction of the City of Saint ,John and its utility, Saint ,John Water; and our Action Plan for Safe, Clean Drinking Water. SAFE, CLEAN DRINKING WATER 3 BUILDING CANADA FUNDING APPLICATION OCTOBER 7' ", 2008 TO SUPPORT SAFE, CLEAN DRINKING WATER PAGE 3 Gas Tax Fund (GTF) Municipalities can use GTF funding for added financial flexibility. The GTF is intended for environmentally sustainable municipal infrastructure that contributes to cleaner air, cleaner water and reduced GHG emissions. Eligible categories of investment include drinking water infrastructure. This program will be expected to provide for a significant contribution to the City's plan for safe, clean drinking water. Building Canada also includes three national infrastructure programs. The Gateways and Border Crossings Fund ($2.113) and the Public Private Partnerships Fund [P3 Fund] ($1.256) are targeted investment programs, focused on specific national priorities. The third, the Building Canada Fund ($8.813), has been established for infrastructure. It complements other funding programs by offering a balanced response to addressing local and regional infrastructure needs, while advancing important national priorities. Public- Private Partnership The public private partnership (P3) initiative is intended to foster stronger P3 markets and seeks to promote greater private involvement in building infrastructure. The P3 Fund is designed to support innovative projects that utilize an alternative to traditional infrastructure procurement. Building Canada Fund The Building Canada Fund (13CF) focuses on economic, environmental, and social benefits, with funding based on provincial population. Major projects are selected through federal - provincial negotiations, in five priority categories: cai Core National Highway System na Drinking Water na Wastewater na Public Transit cai Green Energy The Building Canada Fund has two components. 1 . Major Infrastructure Component targets larger, strategic projects selected on the basis of merit, with projects required to meet criteria targeting environmental, economic and quality of life objectives; emphasizing innovation and partnerships. 2. The Communities Component focuses on projects that help smaller communities (less than 100,000) deal their unique challenges. These are evaluated on how they meet environmental, economic and quality of life objectives. SAFE, CLEAN DRINKING WATER 4 BUILDING CANADA FUNDING APPLICATION OCTOBER 7' ", 2008 TO SUPPORT SAFE, CLEAN DRINKING WATER PAGE 4 Federal funding will be cost - shared to maximize investment by all levels of government. Typically, at the local level, this would mean a cost - sharing formula of 1/3 Federal, 1/3 Provincial, 1/3 Municipal. The process is competitive, based on an application process with project selection by an oversight committee. BACKGROUND The basic processes of drinking water treatment in Saint ,John have changed little over the past 75 years; relying upon excellent sources and an apparent abundance of good raw water. Only relatively recently, the past 20 years or so, have the utility, its governance and the Saint ,John public begun to seriously question the underlying status quo. Emerging health and safety concerns, coupled with an aging infrastructure "time bomb ", have brought much needed attention to this vital municipal service. Change began in earnest with the 1999 Saint John Water Strategy; an assessment of the community's drinking water needs that called for full treatment of drinking water, along with major system reconfiguration. Since 2000, the City has invested tens of millions of dollars in several substantial water system improvements. Drinking water is essential to life and good health; quality must be assured by reliable protective barriers and satisfy rigorous testing parameters - delivered to consumers in a state that is clear, colourless, odourless and free of all disease - causing micro - organisms (pathogens) or harmful chemicals. To truly achieve this standard, our water systems require fundamental change - to assure the quality of water needed at the tap. The "treatment barrier" must attain high particulate removal, improve the effectiveness of disinfection, minimize the formation of disinfection by- products, and enhance the stability of "treated water" for its travel through the distribution system to consumers. Complimentary transmission and distribution improvements would ensure water quality and reliable flows right up to the consumer. Under current conditions, high quality of water at the tap cannot be assured. Council's Priority Saint ,John Common Council has focused attention on the drinking water issue; making safe, clean drinking water a first and unanimous priority. SAFE, CLEAN DRINKING WATER 5 BUILDING CANADA FUNDING APPLICATION OCTOBER 7' ", 2008 TO SUPPORT SAFE, CLEAN DRINKING WATER PAGE 5 Well Informed Public Water is vital to life; an extremely sensitive, emotionally charged service that impacts people directly and very personally. Water is integral to every aspect of community liveability and vital to our social and economic sustainability. A well informed public, therefore, will be critical to the water transformation journey upon which Saint John has embarked. Change must come about and accelerated starting NOW; change that will Saint John Sustains iliy Principle have substantial cost. In bringing this Engage the entire community of Saint John about, the public must become well in the planning and implementation of informed on the issues and engaged in the sustainable solutions. decision process. The fundamental notion behind public drinking water is public well- being. The direction being taken to improve drinking water treatment and distribution will give Saint John a solid foundation upon which to enhance public health, improve community quality of life and build a stronger economy. ACTION PLAN FOR SAFE, CLEAN DRINKING WATER Saint John Water has prepared a comprehensive Action Plan for Safe, Clean Drinking Water framed around an integrated series of measures. This multi- faceted plan, supported by extensive research, planning and engineering, is structured in 16 parts, with associated appendices that detail projects, preliminary cost estimates and proposed schedules: 1 . The Essential Value of Water 2. Service to the Community 3. Regulation and Public Health 4. Source Water (Watershed) Protection 5. Conservation and Sustainable Water Use 6. Water Treatment Facilities 7. Distribution (System) to Customers 8. Innovation and Continuous Improvement SAFE, CLEAN DRINKING WATER 6 BUILDING CANADA FUNDING APPLICATION OCTOBER 7' ", 2008 TO SUPPORT SAFE, CLEAN DRINKING WATER PAGE 6 9. Infrastructure Assets - A Serious Deficit 10. Pricing and Financial Stewardship 1 1 . Governance of a Public Trust 12. Essential Capital Investments 13. Assuring Value 14. Building Canada Plan - New Brunswick 15. Engagement of the Community 16. A Plan for Saint ,John SI ATE OF INVESTMENTS NECESSARY FOR WATER TREATMENT The Action Plan will be formally presented to Saint ,John Common Council for its consideration and approval. 2009 T $2,000,000 D $7,150,000 Timeline: 6 Years 2010 T $4,000,000 D $8,110,000 The transition to safe, clean drinking water, underway 2011 T $19,000,000 since 2000, with many improvements already made, must D $15,060,000 be brought to its full realization - as soon as practically possible, not many years from now. The timeline set for 2012 T $44,000,000 remaining upgrade projects necessary for treatment D $18,870,000 implementation is six (6) years, with all construction 2013 T $33,000,000 completed by December 2014. The Spruce Lake water D $22,380,000 treatment facility would be completed in 2012, with final 2014 T $26,000,000 commissioning in the first quarter of 2013. The Phinney D $22,540,000 Hill plant would be commissioned early in 2015. 2015 T $7,000,000 Essential Capital Investments TOTAL $229,110,000 T = TREATMENT Capital investments of $259.24 million have been D= DISTRIBUTION estimated for water system upgrades; $229.11 million of it necessary for implementation of water treatment. (FOR VALUE ENGINEERING REVIEW) J The Capital investments required to assure safe, clean drinking water present the greatest financial challenge ever brought before Common Council. Acting NOW on bringing about this vital change will mean immeasurable value for the community, its SAFE, CLEAN DRINKING WATER 7 BUILDING CANADA FUNDING APPLICATION OCTOBER 7' ", 2008 TO SUPPORT SAFE, CLEAN DRINKING WATER PAGE 7 people and its economy. We must have the highest of modern standards to assure drinking water quality; putting the health and well being of citizens first, building the community's quality of life and economic future on a sustainable ecological foundation. Although considerable engineering and value assessment work remains, a preliminary analysis of treatment requirements has recommended full conventional treatment, with filtration, for facilities at Spruce Lake (50 ML /day) and at Phinney Hill, 0 30 ML /day) west of Latimer Lake. Preliminary engineering for the transmission and distribution system has identified an extensive series of upgrade projects, over 76% of which are directly related to and necessary for implementation of water treatment. It should be understood that the drinking water challenge is one of three facing Saint ,John Water, as set out in the 2004 strategic direction for water and wastewater services. Progress will continue towards harbour clean -up (full wastewater treatment) and essential investments must be made in the renewal of infrastructure assets. The preliminary cost estimates for identified water system upgrades are: Spruce Lake (50 ML /day) $45,000,000 Phinney Hill (1 30 ML /day) $90,000,000 Transmission /Distribution for Treatment $94,110,000 Transmission /Distribution Other $29,130,000 Total (before value engineering review) $258,240,000 Necessary for Water Treatment $229,110,000 (Estimates will be subject to a formal Value Engineering Review.) Saint ,John Water believes plant sizing could be reduced, particularly on the East system, and that construction costs of treatment facilities could be less. Ongoing operating costs would also be lower as a result. Provisions for a raw water supply East will be a key to optimizing investments and reducing East demand for potable water, with a resized (and reconstructed) potable distribution system. A formal Value Engineering Review will be challenged to clarify best plant sizing and to find least -cost solutions wherever possible, as well as review of a range of strategic and technical considerations. A balanced and objective assessment of P3 options should also be undertaken to identify, understand and evaluate how these might benefit the public and utility customers. SAFE, CLEAN DRINKING WATER R BUILDING CANADA FUNDING APPLICATION TO SUPPORT SAFE, CLEAN DRINKING WATER BUILDING CANADA FUND APPLICATION OCTOBER 7' ", 2008 PAGE 8 A Building Canada Fund application has been prepared for the City of Saint ,John and will be submitted electronically (on or before October 10", 2008) upon the approval of Common Council. A printed copy is attached hereto. Brent McGovern, P.Eng., Deputy Commissioner Saint ,John Water, has been identified as the contact for the application and will coordinate all matters related thereto. Building Canada Fund support is being sought for water system improvements necessary for the implementation of water treatment, arranged as follows: Gas Tax Fund (7 years) $39,746,000 City of Saint John $63,122,000 Province of New Brunswick $63,121,000 Government of Canada $63,121,000 Total $229,110,000 The financial obligations related to other water system upgrades and the renewal of water infrastructure will rest with the municipality and its utility, Saint ,John Water. The following documents will be attached to the application at this time: na City of Saint ,John Council Priorities na Four water quality graphs, two tracking THM sampling and two HAA sampling na Matrix of Projects (with estimated costs) and Timeline of Water System Upgrades Necessary for Water Treatment Implementation na Schedule of Distribution (and Transmission) System Upgrades Necessary for Water Treatment Implementation na Preliminary Capital and Operating Costs of the Recommended Options for Water Treatment Facilities na Preliminary Site Plans for the West Saint ,John Spruce Lake WTP (including possible wind turbine locations) and the East Saint John WTP. Upon Council's approval, the application will be submitted electronically. SAFE, CLEAN DRINKING WATER 9 BUILDING CANADA FUNDING APPLICATION OCTOBER 7' ", 2008 TO SUPPORT SAFE, CLEAN DRINKING WATER PAGE 9 FINANCIAL IMPLICATIONS The cost of quality drinking water and a clean environment presents Saint ,John with a major challenge. Although funding partners are essential, users will bear the lion's share of financial responsibility. Those who benefit from the services must pay their share of upgrade costs. A financial framework of long -term revenues and expenses is updated regularly to reflect changing circumstances and ongoing refinement of projected cost estimates; to provide a context for policy and major fiscal decisions, to optimize the substantial investments being made, and to keep the public and other stakeholders informed. Reasonable and justified funding support from senior government partners is crucial for a meaningful timeline - action is needed now, not years from now. The financial implications for the City of Saint ,John Water and Sewerage Fund and, as such, ratepayers of the utility will be considerable and will be planned for in conjunction with the commitments being made to harbour clean -up (wastewater treatment) and to investing adequately in the renewal of water and sanitary infrastructure. As a result, utility user -rates will continue to rise to cover the cost of these essential investments and debt charges related thereto. QUALITY WATER ..."PRICELESS" The challenges are indeed great; a quest for the generation. The value of safe, clean drinking water is immeasurable; found in public health, liveability of the community, fire protection, the day -to -day life of institutions and business, and vitality of the economy. This extraordinary significance requires that members of Council carefully study the issues related to it and, in the end, be satisfied the interests of the entire community and all of its water stakeholders have been thoroughly considered in the decisions taken. The choices will not be easy. A water utility able to reliably deliver both a quality potable service and a reliable industrial supply will certainly justify the investment being made. The downside of not proceeding in a timely and complete manner is very serious; risk to public health and the general well -being of citizens, waste and inefficient use of water resources, and limitations on sustainable growth and the economy. The Action Plan for Safe, Clean Drinking Water, framed around a series of integrated measures, will need specific and coordinated follow -up attention. SAFE, CLEAN DRINKING WATER m BUILDING CANADA FUNDING APPLICATION TO SUPPORT SAFE, CLEAN DRINKING WATER RECOMMENDATIONS It is recommended that Common Council: OCTOBER 7' ", 2008 PAGE 10 1. Approve the Building Canada Fund application for the City of Saint ,John as described for water system improvements necessary for the implementation of water treatment, arranged as follows: Gas Tax Fund (7 years) $39,746,000 City of Saint ,John $63,122,000 Province of New Brunswick $63,121,000 Government of Canada $63,121,000 Total $229,110,000 2. Schedule a date and time at the earliest possible opportunity for a formal and detailed public presentation of the Action Plan for Safe, Clean Drinking Water. Respectfully submitted, J.M. Paul Groody, P.Eng. Commissioner, For Saint ,John Water Terrence L. Totten, FCA City Manager SAFE, CLEAN DRINKING WATER W O � Q) _Q E Q) E 00 O O N � � � _ O N_ � Q) _Q E Q) CL Q) Ln O ? Q) 0 4-1 Q) : U _ � 0 U _ 0 E E 0 U _ � � 4-1 � � Q) N_ O N C6 O O N Q) _r_ � � Q) � 0 CL § © ~\�§ ` > ±; OR . \ , �&; } « 2�m & 0 § ■ e = � _ Ba <:eo E §» » = o 33 \LL.UM of \kkk2b ±u,= ao ±<# o =o kLn a -" \ ° y\ fouC2 =2\ \\§ » " === = =s=\ f / 3 § = § \ = g \/ /\\ \u a \ \ \ \ / j u k \ / � m a ) 7 o E U � e u o ) E « / 7 � 2 E $ \ \ q § O k \ � / / 4-J } _ � ƒ / ƒ \ / = ¥ . > 0 k C / ° § § £ Q 2 % �/ / / Q V) 0 § f * \ / B § £ < ° < = o « < < 41 / 0 / ƒ / ƒ \ \ @ a u ° e ® £ ) § > ± 0# / / / u E \ E A% a 5 0 / § : / 6 0 \ / ° % < r o % * ± Q / / 2 / ) / Q ( g f§ f f y f u\ << t ƒ O � Q) _Q E Q) E 00 O O N � � � _ O N_ � Q) _Q E Q) CL Q) Ln O ? Q) 0 4-1 Q) : U _ � 0 U _ 0 E E 0 U _ � � 4-1 � � Q) N_ O N C6 O O N Q) _r_ � � Q) � 0 CL § © ~\�§ ` > ±; OR . \ , �&; } « 2�m & 0 § ■ e = � _ Ba <:eo E §» » = o 33 \LL.UM of \kkk2b ±u,= ao ±<# o =o kLn a -" \ ° y\ fouC2 =2\ \\§ » " === = =s=\ f / 3 § = § \ = g \/ /\\ \u a \ \ \ \ / j u k \ / � m a N a-J O .L_ CL N O V O (V 4O U 'E 7 4- E E d O 4� U � 4� 0 ro c 4, c c O O V) � _°c c V V) o N c � 0 N O C: o 4- N C 4- � u N -o c O u O o a � o 0 E a 0 V) (7 0 0 a� �0 i V) i C c6 O Q N c6 a a) o .E u z c o a� 4, a� N 4. a a� E > O u u u o � � o •� C i u ro N L u u N C O E o Q) Q on c � EN + c � 4 o E =) 4. r +1 c O E o a 0 0 > C C d O ro o •E 4 E O N u E o E aV) � o c o V +� 4, u O N C � O u U on � c 0 0 +� 4, N u c � E 4. o V) c0 on c U V) = o u on N a ro C 7 O u c a� Q) a V) c u 0 o � C •Un N N N i �V) a� C C O 0 E N U o c 4- 4 E E °- E O � U c � on .� V) a1 N V) U 4� 7 U 7 V) C u 0 on c c V) a� a E O u .E m aU 0 a u C 7 O u L N C C C a d u 'E a� Q) 4. a 0 u c 0 u C O E E O u C 4. c a� E a 0 on c 'E c a u a� 41 0 O L 7 O L O O E O on Z c O a O O C O 4� ro N ro 4. a� c � a= �u � •E o° 4° +' E � a� E a Q) O 0 a� a .Q 0 a a O (V W O O (V N i O d U C 7 O u c O Ln Ln 0 \ � \ \ / § / k \ / � m # EV) \ \ y E \ / / � / * \ ° f \ ƒ / on 0 & / _ # ƒ / / / / / ƒ / on V) 2 k \ / 2> � \ _ / E ( 4-J / & \ f [ \ Q) § § / / % / / ƒ 4 4 § \ � \ \ / § / k \ / � m # total HAAS (pg /L) 6.. C O .1 .�.i. IV N O W @ Q I � N rli 'C3 O v h, '0 O 0 CJ O 3 O � )QKc" ~ , ° CD o m � w CD G! �-w o an 03 p� > a Is, , 15 total HAAS (jig /L) n C) s o N cn o 4 V C7� 7 Ul � C! a O V "� d O X C) O 4 Z 0 C - 0 v Q CD O �� y_� rt Q CD m - w co C 07 co G� !CL � �t7 0 total THMs (jig/L) rQ N) C7 C7 C:7 cn cn C) cn C) 0 ro so ro :3 _0 0 2. 5' C3 0 r 4 -n 4 0- CD > 4 C, C- 14 53 C- r_ 0 4 C, > 4 a (0 0 (D 4 CO "a 00 4 a CD Z 4 0 < C, 0 4 (D 0 17 co c, -n Co CD cr CAA W CD > Jro CO M C, C: co c o co M C) C, > r- 03 17 total THMs (jig/L) Ca O O cn G©7 � CD D rn n Z M o a K O —_ v C,) ° c E CA O L CD 0 O 3 a CD v 5. x W NI 3 a: 4 �N o CZ) I> V O s V o C- -1 L C_ C? c IS, o 'a 4Q we o Z TI rr CL CL co 0 y co o _ ti W L �y C? W y O > C13 In 'ON, ar mr �° %��aw°` aP. 0 City of Saint John 9-1 14 9.0 CAPITAL AND OPERATING COSTS OF RECOMMENDED OPTIONS Preliminary capital costs for the proposed Plants are as shown in Table 9.1. Table 9.1 — Preliminary Capital Cost Estimate Component Spruce Lake WTP Latimer Lake WTP Architectural $4.01 $7.01M Concrete 10.51 23.01 Control & Instrumentation 1.01V , 3.01 Electrical 3.OM 7.OM HVAC 2.OM 4.51VI Bonds, Insurance, Misc 2.01 4.01 Screens Upgrade . . ...... ..... .. .... N 0.3M Sanitary FIVI 0.71 Site works, yard piping, I 2.01VI landscaping, roads 2.51VI (incl. lagoons) Earthmoving & backfill 2.01VI 4.OM Chemical systems 1' .5M 3.0m Process Equipment & Piping 63M 17.01 Low Lift P.S. 2,01VI Subtotal $37.3M $75M Contingency (10%) $3.71VII $7.5 Engineering (10%) $4.1 M $8.2 TOTAL $45.1 M $90.7M Preliminary operational costs for the water treatment plants are as shown in Table 9.1. Preliminary Design Report RVA 071328 21 Building Canada Fund - Communities Component -- Application Report Page 1 of 12 "Ne", " Nfxlw''w W Brunswick Canadc"I" Building Canada Fund - Communities Component Application Report Project Number: '23001 Application Status: Incomplete Current Date: ,2008-10-08 SECTION I -, MUNlCIPAL APPLICANT OR SPONSOR Legal Name of Applicant/Sponsor: City of Saint John Municipal Code/Band No.: 550 Municipal Type: Urban Street AddressIP.O. Box No.: R 0. Box 1971 Street Address/P.O. Box No. (additional): 15 Market Square Town/City: Saint John Province: New Brunswick Postal Code: E21-41-1 Contact Given/Family Name: Brent McGovern Contact Position: Deputy Commissioner, Saint John Water Language Preference: English Street Address/P.O. Box No.: R 0. Box 1971 Street Address/P.O. Box No. (additional): 15 Market Square TownlCity: .Saint John Province: New Brunswick Postal Code: E21- 41-1 Telephone No.: (506) 674-4264 Fax No.: 1(506) 658-4740 Email Address: lbrent,mcgovern@saintjohn.ca https:llbcfcc-fccve.infrastructure.ge.calReportViewIPrograiTPAppForinHeader.asp?db=O 10/8/2008 Building Canada Fund - Communities Component -- Application Report SECTION It - PROJECT INFORMATION Project Title: Action Plan for Safe, Clean Drinking Water Provincial Project Number: Date of Submission (YYYY-MM-DD): You will be required to provide a copy of a Local Government Resolution supporting this project. Do you intend to upload a copy with your application? Yes Project Description /Abstract: The need to provide clean, safe, reliable drinking water to the users of Saint John Water - tens of thousands of people, involves significantly altering and renewing a water system that was the first public water system in Canada and dates back to the 1830's. Water is essential to life and good health however Saint John's system is not currently reliable, nor does it provide the protection necessary for a healthy vibrant community, To achieve safe, clean drinking water and to sustain this life essential resource, major system changes are necessary now. For example, the current disinfection systems must be replaced with treatment facilities that achieve high particulate removal, improved effectiveness of disinfection, significantly reduced disinfection by-products - trihalomethanes and haloacetic acids, effectively address the risks associated with cryptosporidium and giardia, enhance the stability of "treated water" and improve the esthetics of the water quality. In addition, transmission systems, the majority of which date back to the mid to late 1800's are in need of renewal to provide for a reliable service, reduce system leakage and improve water quality, The Action Plan for Safe, Clean Drinking Water also includes the renewal of a system intake and screen house, water conservation program, renewal of significant portions of east and west transmission mains, completion of a district metering program, construction of additional east system storage, upgrade or reconstruction of the Musquash Pump Station and the construction of two water treatment facilities. The estimated expenditure to complete the Action Plan totals $229,110,000 and Saint John is committing 100% of Gas Tax funding for the next 7 years ($39.746 million). Completion of the Action Plan will provide the infrastructure necessary to provide for safe, clean, reliable drinking water to Saint John; making the City a more liveable community while improving human health. Nature of Project: New Construction Public/Private Partnerships: No Joint Project Applicant: No 1Do you intend to upload a business plan with your application? No Project Location Do you intend to upload an electronic copy of the Project Site Map with your application? Yes Project Street Address Line 1: Project Street Address Line 2: 2524 Ocean Westway Pipeline Road East (off Eldersley Ave) Project Town/City: Project Province/Territory: Project Postal Code: Saint John New Brunswick E2L 41_1 Project Nearest Intersection or Legal Land Location: Project Point of Interest/P lace name: Ocean Westway and King William Rd (Spruce Lake) - Spruce Lake (adjacent Route 1) and Eldersley Ave & Pipeline Road East (Latimer Lake) Phinney Hill location along Pipeline Road (East Other Project Location Information: Latitude and Longitude information relates to the Spruce Lake site, JProject Latitude: 45.18 lProject Longitude: -65.17 Page 2 of 12 https://bcfee-fccvc.infrastructure.gc.ca/ReportView/ProgranfAppFormHeader.asp?db=O 101802008 Building Canada Fund - Communities Component -- Application Report I ......... ... I hs; the proi ct consistent with applicable provin6al, regiwial, or rnmi�cipal plans (e.g., l!and• use, hilegrated watershed rnanagernent plan, municipal official plans, Integrated Community Susta nability Plans)? Yes Fa--, iiw, project tender been awarded? Has construction :stairted? No Does the project involve federal or provincial owned assets? No Does the projecL have authorization to proceed from all appropriate approval authorities? IE No SECTION M - PROJECT SUB-CATEGORY Primary Project Sub-Category: Drinking water treatment systems % of Net Eligible Costs to this 100 Project Sub-Category?: Secondary Project Sub-Category: % of Net Eligible Costs to this Project Sub-Category?: Page 3 of 12 https:llbcfcc-fccvc.infrastructure.ge.calReportViewIPrograr&AppFormHeader.asp?db=O 1008/2008 Building Canada Fund - Communities Component -- Application Report Project Screening Criteria Category: Water Infrastructure Building Canada promotes long-term funding for water infrastructure projects designed to: Improve the safety, management, reliability and efficiency of Canada's drinking water treatment and distribution systems, Increase the number of households with access to safe drinking water that meets or exceeds the Guidelines for Canadian Drinking Water Quality; Improve protection and management of drinking water sources, Improve conservation of water. If the project involves new construction or material rehabilitation, of a, drinking water treatment plant, please affirrn that the drinking water quality, following completion of the project, will rneet or exceed provincial standards. Yes If the requested federal cointribUtiOn is $10,000,000 at more, please affirm that within two years of project approval you will have in place: Yes Full life cycle cost accounting in respect of water Infrastructure assets, Yes An ilrltegrated watershed management plan. Yes Are user fees or metering for resWentialOr C0111MOrGial projects implemented? No WiII full cost pricing be lniplemented? Yes If no, how will cost recovery he pursued and how will capital and operating and maintenaiwe shortfalls be addressed? N/A Explanation: The current water rates study is nearing completion and will result in rates being set (full cost pricing) to cover ongoing operating, maintenance and renewal of infrastructure over its life cycle. However, capital expenditures associated with the significant upgrades that are necessary in the near-term to provide for safe, clean, drinking water (full treatment) are proposed to be shared three :ways (Federal, Provincial and Municipal) with each contributing 113 of estimated costs. It should be noted that with respect to user fees and metering, full metering presently exists for industrial, commericial and institutional users. In addition, significant district metering and system metering advances have been made in the last couple of years and two additional phases (1 and 2) are part of the Action Plan for Safe, Clean Drinking Water. The final components of full district metering are scheduled (see attached Schedule - Water Sytern Upgrades Necessary For Water Treatment Plant Implementation) for with design in 2008 and 2009 followed by construction in 2009 and 2010, at which time full system district metering will be in place and monitored to enable system Iwater audits that will account for all water produced. Page 4 of 12 https:llbcfcc-fccvc.infrastructure.gc.calReportViewIProgran-PAppFonnHeader.asp?db=O 10/8/2008 Building Canada Fund - Communities Component -- Application Report SECTION IV - PROJECT BENEFITS Do you intend to upload a Cost Benefit Analysis or other study with your No application? Project Benefits Applicable Benefit? (1) Increased number of households provided with access to improved drinking Yes water quality (2) Improved quality of drinking water 1 7 Ye (3) Increased service reliability of water treatment and distribution facilities Yes (4) Increased efficiency in the treatment plant operations and/or distribution Yes system (5) Lower volume of water extraction or improved watershed management Yes Additional Benefits: Provide the ability to deliver clean, safe, reliable drinking water while improving the health of citizens and creating a more liveable mid-sized city, This would be accomplished by building full treatment facilities as well as the infrastructure required to support those facilities and deliver a safe reliable supply of good quality drinking water that would meet todays Guidelines for Canadian Drinking Water Quality as well as future proposed Guidelines. As an example, Health Canada recently completed its review of the health risks associated with haloacetic acids (HAAS) in drinking water and based on this review, a "proposed" guideline of 80mg/I (maximum acceptable concentration) has been set for total haloacetic acids in drinking water. See the attached graphs which show recent monthly data (approximately 1.5 years) plotted with the proposed guideline of 80mg/l. The present serious health risk associated with cryptosporidium and glardia would be dealt with as new treatment facilities would have the ability to effectively inactivate such protozoa. Transfer of a large industrial user(s) (current approximate usage of 4,5 to 5.0 million imperial gallons a day) from potable water system to a future industrial raw water system which would be constructed as part of the Action Plan. Renewal of transmission mains that are well beyond their service life (some are greater than 150 years old), which will provide for a significantly more reliable and efficient (less leakage) water service, Significantly reducing the water that is presently flushed (typically during warm summer months) to maintain adequate chlorine residuals. The need to flush would be substantially decreased or possibly eliminated as a result of having the ability to remove the natural organics which currently react with the chlorine and form disinfection by-products. Completion of a a water conservation study. Additional water storage which will provide for improved fire protecti Page 5 of 12 https:llbcfcc-fccve.infrastructure.gc.calReportViewIProgram?�tppFormHeader.asp?db=O 10/8/2008 Building Canada Fund - Communities Component -- Application Report SECTION VJIMELINES AND RATIONALE Timelines or milestones represent key dates in the project when progress is achieved (such as the completion of a phase or a component of the project) and should be provided for projects whose construction time is expected to last beyond one year. A description of each milestone and its anticipated completion should be provided. Project Start Date: 2009 -01 -01 Project End Date: 2014-12-31 Tender Date: 2010-10-01 Project Rationaile 1. What are time specific problems or objectives that this project will address? This section should provide a synopsis of what is happening currently within the municipality or region and what might happen if no action is taken at this time. Make sure that you define the business opportunitylproblem in clear terms. If statistical information is available to support this business case then state what and where it can be found. It should describe the history and the current state of affairs giving rise to the general business problem and thus the need for the project Saint John currently has the ability to simply disinfect its drinking water. The treatment process is a 3 step process involving simply; coarse screening of water, chlorine injection and fluoridation. This results in numerous concerns or problems for the users of Saint John Water. 1. Formation of disinfection by-products; trihalomethanes (THMs) and haloacetic acid (HAAS). The THM running average on the Spruce Lake system has exceeded the allowable running average of 100. See the attached graphs, While HAAS are not yet regulated, it is expected that Health Canada who recently completed a review of the health risks associated with HAAS in drinking water will soon adopt the "proposed" guideline of 80ug/I . The HAA disinfection by-product is already regulated in the United States by the USEPA. See the attached graphs which show recent monthly data plotted with the proposed guideline of 80ug/l. As is evident HAA results for Saint John far exceed (2 - 5 times) the proposed Maximum Acceptable Concentration (MAC). Reductions of chlorinated disinfection by-products would have a corresponding reduction in health risks. 2. Ability to meet current and future Guidelines for Canadian Drinking Water Quality, 3. No means to reduce elevated levels of turbidity. A number of heavy rain events in 2008 alone have resulted in significant turbidity increases resulting in boil water orders. 4. Inability to protect the health of drinking water users from serious health risks like cryptosporidium and giardia (present in surface water supplies), 5. One protective barrier (chlorine) between raw lake water and drinking water, 6, Saint John's drinking water is aggressive and there is no means to presently treat the water by adjusting the pH or by adding corrosion inhibitors. This results in a reduced life cycle for system infrastructure which ultimately impacts system reliability. 7. Boil water orders 8. System reliability 9. Colour 10. Taste 2. How WOLdd your project address these specific proWerns or objectives? This section should indicate how the project would improve or fix the problem stated in the "Project Rationale" section. It should explain why Federal - Provincial funding is required to enable the project to proceed, increase its scope (size) or allow it to proceed earlier than originally planned. Include a brief explanation of a) how the project supports the local development plan for the community and b) how the project will affect the social, economic andlor natural environment of the ,municipality. Page 6 of 12 https:libcfcc-fccvc.infrastructure.ge.calReportView1progranAppFormHeader.asp?db=O0 10/8/2008 Building Canada Fund - Communities Component -- Application Report Full treatment of drinking water would allow for removal of naturally occuring organics from the drinking water. It is the naturally occuring organics that react with chlorine that result in disinfection by-products. Therefore removal of organics will lower chlorinated disinfection by-products thus providing the ability to meet currrent and future Guidelines for Canadian Drinking Water Quality. Full treatment would also provide the ability to treat elevated levels of turbidity thus reducing the risk associated with compromised disinfection when turbidity levels rise. It will eliminate boil water orders associated with turbidity spikes. Health of the public will be protected from cyptosporidium and giardia outbreaks as the appropriate treatment processes will be included in construction of full treatment facilities. As part of the full treatment process there would be additional barriers in place between the raw lake water and drinking water providing for a safer more reliable sytem. Aggressive water would be treated by having the capability to adjust the pH and add corrosion inhibitors. This would extend the service life of system infrastructure and enhance system reliability. It will also have an asthetic impact on reducing the staining (blue staining from teh leaching of copper and red staining from iron pipes) of sinks, bath tubs, laundry, etc. Boil water orders will be reduced (eliminated). System reliability will increase as aged infrastructure is renewed. Colour and taste of drinking water would improve. 3. What alternatives to the proposed solution have been considered? Describe the alternatives considered. System renewal and full treatment of drinking water is necessary. However, a detailed process of value engineering will be completed in the near future to review in detail the preliminary design reports for the Water Treatment Facilities as well as the system changes. As well, further value engineering will be undertaken during the detailed design process, 4. Does this project contribute to a sustainable environment? Indicate how the project will contribute to a sustainable environment. This project does contribute to a sustainable environment in a number of ways. Listed below are a number of examples that will result in direct benefits: 1. Reduction of system leakage, 2. Full system metering will provide the ability to complete system water audits to account for all water produced, 3. Water conservation study that will identify ways to further reduce water demands. 4. Reduce the amount of copper in the wastewater by improving the stability of the water (reducing its agressiveness). The agressive water reacts with the system piping resulting in the leaching of copper from services which ends up in the wastewater. The high level of copper in Saint John's biosolids, prevents the City from having a grade A biosolids. 5. Reduce the amount of drinking water disinfection by-products (example of chloroform) that are released to the environment through wastewater effluent. Below are some of teh benefits that are being researched as part of this project: A. Solar power/energy at the treatment facilities. B. Wind power/energy at the treatment facilities. C. Geothermal heating/cooling. D. LEED Certification of the facilities. Page 7 of 12 https://befee-fcevc.infrastructure.gc.ca/ReportView/Prograni3AppFon,nHeader.asp?db=O 10/812008 Building Canada Fund - Communities Component -- Application Report E. Micro-hydro. 1 5. Describe any innovative technology that will be employed during the realization of the project, Provide details on the technology to be incorporated in to the proposed project Focus on new approaches, best practices and whether the project uses the best available technologies (that are economically feasible) or innovation to address the problem. As noted above, a number of innovative technologies are being considered. 6. What are the significant project risks and what is your strategy to mitigate those risks? Risks are uncertainties or constraints that may prevent the project from completing on time, on budget, or in its original scope. Few projects are completely without risk, however, most successful projects manage or mitigate their risks through good planning and on going management. Indicate any known risks (such as short construction season, possible uncertainties in building site that might influence cost, etc) and specify how those uncertainties may impact the performance of the project, either in duration, cost, or meeting the requirements. Then indicate what actions are possible in advance or during the project to reduce the effect of the risk (mitigation). Risks are associated with not moving forward on full treatment of drinking water facilities. Page 8 of 12 https:llbcfcc-fccvc.infrastructure.ge.calReportView1prograrrPAppFormHeader.asp?db=O 10/8/2008 Building Canada Fund - Communities Component -- Application Report SECTION V1 - PROJECT COSTS You will be expected to provide detailed cost estimates with your application. Do you intend to upload detailed cost estimates with your application? Eligible Costs: Environmental Assessment Costs Design / Engineering Costs 26,296,500.00 'Materials 0.00 Construction 182,282,500.00 Contingency Costs 1 20,531,000.001 lOther Eligible Costs: Total Eligible Cost: 229,110,000.00 Tax Rebate: 0.00 Net Eligible Cost: 229,110,000.00 Ineligible Costs: Land Acquisition 600,000.00 Leasing Land, Buildings and Other Facilities 0.00 General Repairs and Maintenance 0.00 Financing Charges 0.00 Legal Fees 1 250,000.00 Other Ineligible Costs: Financing charges - to be est. in financial management plan 0.00 Total Ineligible Cost: 1 850,000.001 Total Estimated Gross Project Costs: 229,960,000.00 Tax Rebate: 0.00 Total Estimated Net Project Costs: 229,960,000.00 Page 9 of 12 https://befee-feeve.infrastructure.gc.ca/ReportView/Prograti ,AppFonnHeader.asp?db=O 10/8/2008 Building Canada Fund - Communities Component -- Application Report P-roposed ,, nandnq of Eligdate Costs MUnlripal Provhlcial Federai (BCF-CC) Other Federal Other Trots Source(s) (BGF-CC) It', 63,121,33134 63,129 , 333.33 63,129 , 333.33 39, 746, 000.00 0.00 229,110,000.0 of Casts 27.55% 27.55% 27.55% 17.35% 0% 1000, Other Federal Funding Amount 1 39,746,000.00 Specify Other Federal Funding Source 1 7 Years of Gas Tax Funding Other Federal Funding Arnount 2 0.00 Specify Other Federal Furiding source 2 Other Federal Funding Arnount 3 0.00 Specify Other rederal Funding Source 3 Indicate the person who has verified that these project cost estimates are accurate, as well as the date that the antirnntwe, wprp vorifiPti Name IDean Price, P.Eng. Date (YYYY-MMDD) 12008-09-26 1 tither Federal Fund; include, Gas Tax I PuWic Transit es Unds? �pecify Canter Funding Source Other Project Financing Is this a multi-stage project? If so, please indicate which stage. Please note that each phase must be able to be considered a stand-alone project.: Yes This is the beginning of a 6 year multi-stage project relating to the construction of two water treatment facilities and all associated infrastructure. Each infrastructure project as noted in the cost breakdown is an individual stand-alone project. Will the project require the borrowing of funds?: Yes Will the project serve commercial operations?: Yes Improved water quality would be delivered to commerial operations such as; Moosehead Breweries Ltd., Crosby Molasses, Baxter Dairies (Saputo), Sucor (sugar refinery), Port of Saint John for use on cruise ships and many other commerical operations. Does the applicant have a plan to fund, operate, and maintain the asset over its lifecycle?: Yes Water rate restructuring plan that is nearly complete and it will provide the funding necessary to �operate, maintain and renew infrastructure once constructed. Please affirm that the contract award process will be competitive, fair, and transparent (e.g., no sole-source contracts, no union-only processes) and consistent with the Agreement on Internal Trade and Canada's international trade obligations.: Yes Please state who will own the asset in which the infrastructure investment is being made.: Pity of Saint John will own the assets in which infrastructure investments is being made, Documents Upload'ed Descriptive `Title Hename, Date. Uploaded documents uploaded https:libefee-feevc.infrastructure.ge.calReportViewIProgram3 ppFormHeader.asp?db=0 Page 10 of 12 10/8/2008 Building Canada Fund - Communities Component -- Application Report SECTION VU - ENVIRONMENTALASSESSIVIENT I. Environmental Assessment Details I Does the project involve physical works or activities located within 30 meters of a water body such as a wetland, steam, river or lake? Yes 2 Is the project likely to involve the release of a polluting substance into a water body? No 3 Will the project be carried out on or near environmentally sensitive lands such as federal or ,provincial parks or migratory bird sanctuaries? No 41WIll the project be carried out on or near First Nation lands? No 5 Does the project require the use of federal land? No 6 Does the project require federal regulatory approval such as a permit or authorization under the Fisheries Act or the Navigable Waters Protection Act? No 7 Has the project previously undergone or is it currently undergoing a federal or provincial ,environmental assessment? No 11. Environmental Assessiment Contact Information 8 Please fill out the information for Environmental Assessment contact verification. Name of EA Contact: n1a Position: n1a Address: n1a Phone Number of EA Contact: J Email: Page 11 of 12 https:llbcfcc-fccvc.infrastructure.ge.calReportViewIPrograrnAppFormHeader.asp?db=O 10/,8/2008 C t.y If'Li'd'II 15 MdICII,UA SqUare October 2, 2008 His Worship Mayor Ivan Court and Members of Common Council Your Worship and Fellow Councillors, Re: Standing Committee System Vim.(.. Box 19 71 506 658-2800 Saint. ItAirt �C'anacla E21... 41A k (::" ty, cif s:mha 10l1111i. The enclosed material provides background information on the proposed Standing Committee system, including; • Presentation • Vision 2015 — Final Report • Discussion Paper on Council Committee System • Strategic Decision Making Model Report • Draft Committee System Bylaw The teach -in to be held on Thursday, October 91h will touch on the key considerations in these reports and introduce a comprehensive model for a standing committee system. The intent of this session is to provide sufficient information for Council to make an informed decision on whether or not to proceed. The material is being provided well in advance of the teach -in in order to allow you sufficient time to familiarize yourself with the concept of a standing committee system and the attendant issues. The format will be informal and will provide ample opportunity for each of you to raise any matters of concern. Follow up session(s) can be scheduled as required. I look forward to discussing this material with you and would be pleased to respond to any inquiries in the interim. Respectfully Submitted, &atrickWoods CGA Deputy City Manager 35 Strategic ii in Model 'AINT IOIIN Community Vision —The Future WNi K)HN 11110=111111111111111IIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIll11111111111IIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIl111111111111111 . . 1111111, DetwTmhhq 1h@ diaiwAOxy murvIcipaMy ahouW move 1111111, E91W.fthing 019 OWaN k)nOwn gaft - F: N DwAko Ild Ong & Prkw6zkq Ot�jerwn Vakge to UvAn,.) 11111111 Munilo%rq Outcomes and Progrem 90 on Context 00 Community Priorities Council Outcomes Standing Committees 00 0 . ......................... :92 * Implementation - Integration &MIN 1 5014M iiiiiiiiiiiiiiiiiiiiiillillillillillillilliillillillillillillilliilillilillillillillillillillillilliillillillillillillilliillillilillillilluilliilliilillillillillillillillillillilI , , 1p' Principles of Good Governance Legitimacy & Voice Democratic Accessible and Representative Direction Strategic Visloni Performance Responsive and Effective Efficient Accountability Accountable Transparent Fairness Equity Rule of Law M—, 2015 $.�J.h. O Desired Outcomes vk 2015 $M JdNo C— Nq� 37 Pq ROLE- POLITICAL REPRESENTATIVES H STATUTORY 35(2.1) 1111111111 POLICY 11 3 SHALL CONSIDER THE 11 3 PROGRAM PLAN WELFAREAND I NFW INITIATIVES INTERESTS OF THE ENIIEE COMMUNITY PRIORITIES 11!3 PARTICIPATE IN SERVICE OBJECTIVES DEVELOPING AND 1!Y BUDGET EVALUATING POLICIES AND PROGRAMS I' EVALUATION PARTICIPATE IN COUNCIL 0 PLAN IMPLEMENTATION AND COMMITTEE MEETINGS rl PERFORMANCE OBJECTIVES moon 20is Swat jdn Oa- ipmond ROLE - COUNCIL WNT ORN 111111111111111111111illillillillillillilliillillillillillillillilillillillillillillillillillillilliillillillillillillilliillillillillillillilliillillillillillillillillillillilliilli" 11111111 STATUTE SETS OUT RESPONSIBILITIES F IT IS THE DECISION MAKING BODY 11111111 ONLY COUNCIL CAN ADOPT BYLAWS, RESOLUTIONS im 9 Political Role — Policy Tools SANT "IN iiiiiiiiiiiiiiiiiiiiiillillillillillillilliillillillillillillillillillillilillillillillillillillilliillillillillillillilliillillillillillillillilillillilillillillillillillillilliilI 1111111 Representing Views o oals * Setting Priorities to AJlocate Resources * Choosing between Alternate Courses of Action * Monitoring Implementation & Progress Hill Answering for these decisions 01111111 Responding to Constituent Concerns . . . ........ V� 20, 5 3� jd. oi P-00 4) Policy Focused System Wj%it Ii iiiiiiiiiiiiiiiiiiiiiillillillillillillilliillillillillillillillillillilillillillillilillil[MWMIIIIIillillillillilli[EMOU Us Policy _ a governing principle, plan or &ection that guides or influences future decisions U11111 Council makes public policy decisions; others implement Adopt a budget and set tax rate. Propose a budget. Analyze alternatives. Spend within Fm its Adopt a vision and goals for the Deliver services in support of community and set strategic direction, I Courcil's strategic direction. Adopt policy allowing or prohibiting Enforce terms of parking policy. off-Street parking Model Features WNW 1i IIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIillillillillillillilliillillillilliillillillillillillilliillillillillillillilliillillillillillillilliilillillilliillillillillillillil101P 111111 Anchored In Achieving Community's Vision to Focused - policy and strategic direction 01111111 More active/involved roles for Councillors N Enhanced public participation HI More effective decision-making process 01111111 Improved effectiveness and efficiency in operations N Improved accountability and transparency VAW zaw 8..a jo. KE 2 Political 4! n d�e „w[hi�rnfuri�r;l'rumt�iNn�ro p'q��nl�r�ti vbury 2011 1 Som o0e— r*rq -4 Potential Benefits and Pitfalls s I N r It) lih ''WJIi 'lul q'e4d%M:uO.'I ,. I I II in Potential Benefits 1101 Pc4enmi, piti 1:1 Specialize IICt Ignore vti I'D Interests III Dupkabon effort Citizen input 110 Fragmented Outlook i opinion Speetl up work IILl Duck pae ®et® Informal atmosobere I0I Neglect cornmnity 1:1 Participation staff IICt Interfeirence in opwaLmorm, 1:1 Better docisions 110 Coftfkt juviii tin IIM1 Accountability IIIIII Term Lees IIM1 Responsweftransparonl vwm 2016 auiml J” Qi-- P. WA 40 Standing Committee Mandates ,,R Standing committees maker mmendaUans to Council on policy within a specified mandate u Broad mandates define the purpose and authority (sphere of jurisdiction) of each committee !is Standing Committee mandates established by Bylaw-, F i Urban Development and Safety 0 Economic Developmerit and ErhvirwriTant El Infrastructure Development D community and Cultural Dw"ment 111 Coordinating Committee JA. Q- Committee Composition 1111111111 Only members of Council appointed to SPCs 111111111i Mayor is ex-officio member (no vote; no quorum III CAO has the right to att end a 11 S PC m eetings rJ Committee of the Whole: All Members of Council uuuu Coordinating; Mayor (Chair), Chairs SPCs 1111111111 Standing Pofigy Committee: 5 Members of Council . ..... . . ..... .......... & Appointments LIANf KMN IIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIillillillillillillillillillillilillillillillillillillilliillillillillillillilliillillillillillilliIIillillillilillillillillillillillilliilI 0 Chairs nominated by Mayor— appointed by Council 111111111 Committee Members appointed by Council 11 ONE FROM WNMRD I I MENDER OF AT LEAST TR* SK AT ALL TIM11 1::N N0-0.M—FEfDU—GTER"QF0i 0 Vice Chair elected by Standing Committee Membership 1111111 Can only chair one committee at any given time IN A Member of Council cannot chair same Committee in consecutive rotations NneNmn 2010 U" JO* 0— F"Fro 41 X rPCommittee Rotations LUNT 1OHN iiiiiiiiiiiiiiiiiiiiiillillillillillillilliillillillillillillillillillillilillillillillillillillilliillillillillillillilliillillillillillillillilillillilillillillillillillillilliillI - NO Chairs are rotated every two (2) years 111111 Membership is rotated every two (2) years M Two (2) Members remain on the Committee with three(3) new Members added 111111111, Rotation occurs midway through Mandate (June) 111111111, Appointments according to established process vh� Iola S« t MI. G_. P.0,3 Public Presentations 11111111111 Public presentations are made at Committee meetings 11111111111 The public does not make presentations to Council unless: 13 Required by legislation (i.e., public hearing) 11-1 Recommended to Council by a Committee IIIII Requests to make public presentations require a written submission to the Clerk . . . ............. Ad Hoe & Sub-Committees EMNI ORN iiiiiiiiiiiiiiiiiiiiiillillillillillillilliillillillillillillillillillillilillillillillillillillilliillillillill[UMMIIIIIIillillillillillillillilillir 0 Ad hoc OCreated by Council to review and develop recommendations for special purposes (e.g, ward system) OConsult -Advise - Report to Council In Sub-Committees [°Il Created by Standing Committees to review and help develop policy an matters that fall Within the mandate ACorsult - Advise - Report to Standing Committees VkW" 2010 a t J&. G.- Pm A % 42 N Y.- TWO Gwnn— iftq „l Big Picture MINI MR nnmuuuuuuuuuuuuuuuuuuuuuuuuuuuuuuuuuuuuuuuuuuuuuuuumu�uue� 'Nmi'�muuu'.... ......... ..................... uiuuu Four SPC - One Coordinating in Anchored in Achieving Vision - Policy Focus 1110 Respects Governance Principles e Rotations - Exposure, Expertise, Interest New Process - Access Point is the SPC u1A New Roles - Chair, Member, Councillor IS Better Outcomes - Performance, Accountability MR Risks Fragmentation, Roles 43 0, Governance Example &UNT JOHN woo Amn & Meeting Schedules IR Standmg Committees meet once a month 1:::::[ Coo rd inating: Mondays - every second Committee of the whole meeting ClStanding Policy 1: 181 Wednesday each month ClStanding Policy 2: 2rd Wednesday each month nStandling Policy 3: V Wednesday each month nStanding Policy 4: 4th Wednesday each month N Between 11:30 AM and 1:30 PM in Chambers 44 RDPracticalities of ImDlementation 1110 Council Commitment 0 Support of Councillors 01111111 Meeting Frequency i"I'll Public Access and Participation 119 Learning Curve IIIII Stabilky during Transition 1111111111, Legislative Changes UIIIIIII Relationships to ABC * Agencies, Boards& Commissions WNI KMN IIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIillilliliEwwollillilliillilli�ilillillillillillillillilliillillillillillillilliillillillillillillillilliir - 2015 , �, PmMO Agencies, Boards & Commissions W141 Hillillilillillillillillillillillillillillillillillillilliwimi�illiillillilillillillillillillillilliillillillillillillilliillillillillillillillI 111111111 Required reporflng to Council through one or more SIPCs OT: �) Activriles and parkmance 13 �tw sclwiD93 contribute to Counci's policy. strategic direction and pnonl4ft 11111111 Bud et allocations do ondent - re ordno rformance kh— 2015 3� jo. cw,— P.Od 45 iff Next Steps &41 NT )URN 11090NRNMNffMIMIMIMIMIMIMIMIMIMIUIMIMIMIMMMI� M Fft-4 I I T M, r* Nits a committee system better for the City and Citizens? OWnat improvements are required D Tirring of implementation ,IN Implementation 0 Finalize committee mandates 1!1 r C Bylaw ameridrnprLs Vqa 2015 C.-- P'q.A Political Organization L"I FC*fK --------- --- ---- - Itttttttttttttttttt Governance ROW HHHHHHHHH11 A&dnWYwfiva lRa ll" vWW 2016 SOM Jhn pno'l 46 11 jr I I Ar� '�40 ^a if GV nlO^u VISION 2015 CITY OF SAINT JOAN NOVEMBER 26, 2007 47 VISION 2015 OUR SAINT JOHN OF THE FUTURE TABLE OF CONTENTS CITY OF SAINT JOHN NOVEMBER 2007 ACKNOWLEDGEMENTS .................................................................................... ............................... 1 THE CITIZENS ADVISORY GROUP ............................................................... ............................... 1 INTRODUCTION................................................................................ ............................... WHATIS VISION 2015? ................................................................................... ............................... 3 WHY IS VISION 2015 IMPORTANT? ................................................................. ............................... 3 PARTNERING FOR SUCCESS ............................................................................ ............................... 3 HOW WAS VISION 2015 DEVELOPED? ............................................................. ............................... 4 TRANSLATING VISION INTO ACTION .............................................................. ............................... 4 COMMUNITYVISION ................................................................................... ............................... 5 INTEGRATED COMMUNITY SUSTAINABILITY PLAN ................................... ............................... 5 COUNCIL PRIORITIES AND STRATEGIC POLICY PLANS ............................. ............................... 5 CORPORATE STRATEGIC PLAN ................................................................... ............................... 6 SERVICE DELIVERY PLANS ................... ............................... WHAT IS A SUSTAINABLE COMMUNITY? ......................................................... ............................... 6 CITIZENS ADVISORY GROUP ........................................................................... ............................... 7 ENGAGING THE COMMUNITY .......................................................................... ............................... 7 OUR SUSTAINABILITY PRINCIPLES .............. ............................... ........................... 9 SUSTAINABILITY PRINCIPLES FOR SAINT JOHN ......................................... ............................... 9 Sustainability Principle One ................................................................... ............................... 9 Sustainability Principle Two .......................................................•-•--•-•-- •---- .......................... 10 Sustainability Principle Three .............................................................. ............................... 10 Sustainability Principle Four ............................................................... ............................... 11 Sustainability Principle Five ................................................................ ............................... 11 Sustainability Principle Six .................................................................. ............................... 11 Sustainability Principle Seven .............................................................. ............................... 12 Sustainability Principle Eight ............................................................... ............................... 12 Sustainability Principle Nine ...........................••--................................. ............................... 13 Sustainability Principle Ten ................................................................. ............................... 13 OUR COMMUNITY VISION ............................................................................. ............................... 14 CITY OF SAINT JOHN COMMUNITY VISION STATEMENT ......................... ............................... 14 OUR COMMUNITY GOALS ............................................................................. ............................... 14 TWENTY YEAR COMMUNITY GOALS... .................................................................................... 15 Social..................................................................................................... ............................... 15 Economic............................................................................................... ............................... 15 Environment.......................................................................................... ............................... 15 Infrastructure........................................................................................ ............................... 15 Governance............................................................................................ ............................... 16 VISION2015 NEXT STEPS ...........................•----.............................................. ............................... 16 RECOMMENDATIONS ..................................................................................... ............................... 17 0 48 I cry, ku a oMf% 49 CITY DF SAINI JOHN NOVEMBER 2007 VISION 2015 OUR SAINT JOHN OF THE FUTURE ACKNOWLEDGEMENTS CITY OF SAINT JOHN NOVEMBER 2007 Thank you to the thousands of people who shared their hopes and dreams for the future of Saint John by participating in the public consultation process. Your thoughts and ideas formed the basis for a Community Vision and Goals. We look for your continued support and input as we work to translate your vision into action. Together we will build a stronger community. The City of Saint John Environment Committee is recognized for their time and effort in drafting a set of sustainability principles for the City of Saint John. The Vision 2015 Committee appreciates the contribution made by the Environment Committee. The Vision 2015 Committee would like to acknowledge the valuable role of the Citizens Advisory Group. The leadership and dedication of this group of community leaders was instrumental in the success of the public engagement. Special thanks to Mike Schulze, Susan Atkinson, and Francois Beaulieu who shared chair person responsibilities throughout the project. THE CITIZENS ADVISORY GROUP Mike Schulze Susan Atkinson Francois Beaulieu Stephanie Bell Ross Galbraith lM Daniel Goodwin Sarah Jones Janet McLaughlin Jocelyn Stevens Ivy Wang VisloN 2015 C11 v of SAINT JOHN OUR SAINT JOHN OF THE FUTURE NOVEMBER 2007 .�� His Worship Mayor Norm McFarlane and Members of Common Council Your Worship and Members of Common Council: I am pleased to provide the final report - Vision 2015 Our Saint John of the Future -- to Saint John Common Council. The report outlines the background, process, and results of the Vision 2015 eleven month public engagement lead by the Citizens Advisory Group. The Citizens Advisory Group was asked to accomplish three objectives. The first was to develop a community vision by consulting with the public. The second was to identify goals we can all work towards to achieve this vision, and the third objective was to develop a set of sustainability principles for Saint John. The public engagement process was a tremendous success. The Citizens Advisory Group received feedback from approximately 4.2% of the community, translating into well over fifteen thousand ideas on the future for Saint John. This information became the basis for a community owned and developed vision statement and goals to describe our Saint John of the future. With the support of the Saint John Environment Committee, sustainability principles were developed. Vision 2015 will build on the success of this public consultation. With a community developed vision and goals, we are well prepared to translate vision into action. wawwk b' 2 1014 0 wp ,R VISION 2015 CITY OF SAINT JOHN OUR SAINT JOHN OF 7HE FUTURE NOVEMBER 2007 WHAT IS VISION 2015? Vision 2015 is a shared plan for continuous improvement to make Saint John a national leader as a sustainable community. Starting with a long -term vision and goals developed and owned by the community, Vision 2015 is a multi -year program designed to translate vision into action while providing balance amongst community needs as we move to a sustainable future for Saint John. The project is using an integrated approach of planning, strategy, action, and performance measurement to align City services to the vision, goals and objectives identified by the citizens of Saint John. WHY IS VISION 2015 IMPORTANT? r 'Change has to happen by desbn, not by default. You need a vision, and leadership to acknowledge the problem. And you need a mechanism for translating this vision into the detailed actions that happen on the ground' Elisa Campbell, SPADE I. Many people believe Saint John is on the verge of transformational change. With this change, we have both the opportunity and the responsibility to seek solutions for our community needs and to maximize the benefits on the horizon. We must do this in a way that moves us forward as a sustainable community. Specifically, we must ensure today's solutions do not jeopardize the ability of future generations to meet their needs. Vision 2015 will provide a framework for the City of Saint John to change how it operates in responding to community identified goals and opportunities, while improving accountability and transparency in local government. PARTNERING FOR SUCCESS Saint Johners have completed an important first step. The community has spoken and this voice resulted in the development of a long -term vision and goals for Saint John. Attainment of the community vision and goals will not be easy. Success will require partnerships. Community groups, institutions, businesses, volunteer agencies, individuals and government must work together to reach our common goals. The support of organizations and the people of Saint John is critical in moving towards sustainability. Every person or group can actively participate by examining what they are doing today to ensure success, and what changes they can make in decisions, plans, and actions to 1 SPADE - Sustainability Planning and Design Essentials: Fundamentals for Implementing Sustainability into Practice By Elisa Campbell, Elisa Campbell Consulting 1 Design Centre for Sustainability, School of Architecture and Landscape Architecture at UBC. Page 3. 52 VISION 2015 CITY OF SAINT JOHN OUR SAINT JOHN OF THE FUTURE NOVEMBER 2007 move us closer to reaching the community vision. As individuals, we represent many diverse sectors. Collectively, we are all stakeholders working to ensure Saint John moves forward. The City of Saint John has an integral role to play. Vision 2015 will work to ensure that city services are aligned to the desired outcomes for the community. These outcomes directly contribute to the achievement of the vision for Saint John. The City of Saint John will continue to make sure its operation provides value to Saint Johners and that the effectiveness and efficiency of every service will be measured and reported to the community. HOW WAS VISION 2015 DEVELOPED? In February 2005, Saint John Common Council retained Chartwell Inc., a consulting firm specializing in solutions for the public sector, to review operations of the City of Saint John and its Agencies, Boards, and Commissions. Chartwell worked with stakeholders to design, develop, and carry out the review. Close to two- hundred people from the City of Saint John and affiliated organizations, participated in the study that spanned a seven -month period. Chartwell reviewed and analyzed existing strategies, plans, and financial documents. They completed a preliminary inventory of municipal services using the Governments of Canada Strategic Reference Model, a methodology used by many Canadian cities and the Federal Government. The consultant noted that the City was fortunate it had not experienced service failure due to financial challenges and increased demand for quality services. 2 Vision 2015 was a direct recommendation of the Operational Review. Common Council received and approved the Operational Review report in September 2005 and shortly thereafter Vision 2015 was initiated. TRANSLATING VISION INTO ACTION 'What is required is a bold step toward the future of Saint John; the wholehearted adoption and embracing of a comprehensive program that represents a significant investment but reaps even more significant rewards — a program that redresses 10 years of under - investment in the City's people and its physical infrastructure; and a program that turns all improvement opportunities into the delivery of superb programs and services that will make Saint John a model community in Atlantic Canada. Vision 20`15 — Saint John's Program of Excellence is that program' Alan Mitchell, Chartwell Report, Page B Vision 2015 is using a long -term, integrated, planning framework to translate vision into action. The framework recognizes that the City of Saint John, like all municipalities, is a complex system, and it addresses environmental, economic, social, governance, and infrastructure needs.3 2 Chartwell Inc., Saint John Operational Review Program Final Report. 2005. Page 9. 3 City of Saint John Project Charter - Translating Vision lnto Action: Defining The Planning Framework 4' . \ll \1 NNI\ 53 VISION 2015 OUR SAIN] JOHN OF 7 "I lE FuruRE M CITY OF SAINT JOHN NOVEMBER 2007 °•* rl Figure 1: Translating Vision into Action from City of Saint John Project Charter - TransIating Vision Into Action: Defining The Planning Framework COMMUNITY VISION The planning framework uses a top down approach that starts with a shared community vision and goals developed through widespread public engagement. The citizens of Saint John not only need to support a vision, it is essential they have an active role in defining it. Successful change happens when those involved in the transformation share and work toward a common purpose. Community participation is essential for Saint John to achieve its vision for the future. INTEGRATED COMMUNITY SUSTAINABILITY PLAN The Integrated Community Sustainability Plan (ICSP) looks twenty to thirty years in the future and is developed in consultation with the community. The strength of an ICSP is the whole systems approach to planning. Policies will be developed to balance the community needs and goals. Along with a community vision and sustainability principles, this plan includes an analysis of current issues, identification of community goals and outcomes, action plans with performance measurement, and an implementation and monitoring plan. COUNCIL PRIORITIES AND STRATEGIC POLICY PLANS Saint John Common Council operates on a four -year term and each new council will set priorities for their mandate from the outcomes and strategies contained in the ICSP. These priorities will be measurable and contribute to reaching the Vision for Saint John. Strategic t�. VITY .+ni ani, 54 VISION 2015 CITY OF SAINT JOHN OUR SAINT JOHN OF THE FUTURE NOVEMBER 2007 policy plans provide more detail on Council priorities. It is expected they will become the responsibility of the Standing Policy Committees under the proposed Council Policy- Committee form of governance. CORPORATE STRATEGIC PLAN Saint John Common Council sets priorities and establishes policy to provide direction to the City of Saint John administration. In doing so Common Council will ensure the services provided by the City are aligned with community outcomes. The corporate strategic plan translates the needs of the community into action plans. It provides the vision, values, principles, focus, and direction for the organization. SERVICE DELIVERY PLANS The final step in the planning framework is the development of Service Delivery Plans. These are detailed administrative plans describing how services will be delivered to successfully achieve the identified outcomes. These plans ensure the community's needs are met, achievement of Council priorities, and maximization of limited resources. WHAT IS A SUSTAINABLE COMMUNITY? In the future, Saint John will be nationally recognized as a sustainable community. The Brundtland definition describes sustainability as "Meeting the needs of the present generation without compromising the ability of future generations to meet their needs." 4But what does this really mean? We think there are three major differences between a sustainable community and a community that uses a traditional approach. A sustainable community recognizes the importance of long range planning and in doing so has a vision and goals to describe the future. This look forward allows communities to determine what needs to be done today to reach tomorrow. Sustainable communities understand that social, economic, and environmental needs are interrelated and take a whole systems approach to provide for balanced priorities. The Brundtland Commission, convened by the United Nations in 1983, was created to address growing concern about the accelerating deterioration of the human environment and natural resources and the impact of that deterioration for economic and social development. In establishing the commission, the UN recognized environmental problems were global in nature and determined that it was in the common interest of all nations to establish policies for sustainable development. Sustainable communities know that community groups, institutions, businesses, volunteer agencies, government and individuals must work together to set goals, form plans, and implement solutions. 4 http: / /en. wikipedia .org /wiki /Sustainability �• 6 l51 \I hl[ti 55 VISION 2015 OUR SAINT JOHN OF THE FUTURE CITIZENS ADVISORY GROUP CITY OF SAINT JOHN NOVEMBER 2007 One of the first initiatives in the Vision 2015 public engagement was to establish a Citizens Advisory Group. The citizens of Saint John not only needed to support a vision for the future, it was essential they had an active role in defining this vision. The Citizens Advisory Group led the public engagement. This group was a working committee that researched, planned and implemented the community consultation. The Citizens Advisory Group is a team of community leaders committed to ensuring the success of this project. The group is comprised of, Susan Atkinson, Frangois Beaulieu, Stephanie Bell, Ross Galbraith, Daniel Goodwin, Sarah Jones, Janet McLaughlin, Michael Schulze, Jocelyn Stevens and Ivy Wang. The group prepared the Community Vision Statement and Goals based on the hopes and dreams people of Saint John shared through the consultation. ENGAGING THE COMMUNITY On November 6, 2006, Common Council initiated a wide spread public engagement by adopting the following resolution: "RESOLVED that Common Council endorse and support the initiation of a community consultation process regarding the long -term vision for our community as detailed in the submitted report Vision 2015 — Community Consultation." Engaging the community was accomplished through a Community Visioning project, which was lead by the Citizens Advisory Group. The project had three goals. The first goal was to develop a shared community vision for Saint John through public engagement. The second was to identify outcomes or community needs, because without understanding the needs it will be difficult for the City of Saint John and the community to position Saint John a national leader in sustainability. The last goal of the project was to develop a set of sustainability principles for Saint John. These principles were used to help guide the development of the vision and the goals. One of the first assignments for the Citizens Advisory Group was to prepare a strategy to gather input from as many people in the community as possible. The strategy considered the different stakeholder groups and the best way to engage them in the process. During the public consultation, a great deal of effort was made to identify and engage various stakeholder groups. Reflecting the diversity in the community was a priority in this project. Communication with the public was important and a communications plan was prepared. Both the public engagement and communication strategies were evaluated throughout the process to assess effectiveness and to make adjustments as necessary. Here are some highlights of the public engagement. 97- 7 -M VISION 2015 OUR SAINT JOHN OF THE FUTURE CITY OF SAINT JOHN NOVEMBER 2007 0 Public launch of the community consultation held at the New Brunswick Museum on April 13, 2007. Close to two hundred people attended the well - received event. t, Collaborated with Fusion Saint John on the theme and activities of the "Faces of Fusion Dinner - What's Your Vision for Saint John." IIK Release of "My Saint John" video, highlighting opinions about the future of our city and what individuals can do to make this future a reality. W City of Saint John website hosts the Vision 2015 questionnaire and video. 0 Email Campaign, "What are your Hopes and Dreams for Saint John? " involving over fifty stakeholder groups. It Establishment of a feedback line, 633 -2015, for people wishing to respond verbally to the five questions. 1ooi One- hundred percent participation from middle and high schools in Vision 2015 contest. Vlol, Community barbeques held at the South End, Somerset, North End, Carleton, and Forest Glen Community Centres. Volunteers were on hand to capture the opinions of people requiring assistance. 01t Attendance at local events and venues with the questionnaire. top Solicited group response to the questions. b� Meetings with the local business community. tu, Vision 2015 Facebook set up on the networking web site to exchange ideas about the future of Saint John. ! Collaborated with Saint John Energy to have Vision 2015 messaging on energy bills. 011111 Support from Harbour Station for promotion of the public consultation on the out door digital billboard. Ill, Promotional give away sponsored by McDonalds Restaurants for returned surveys. The public consultation concluded in July, 2007. The advisory group received feedback from approximately 4.2 % of the community. This translates into well over fifteen thousand ideas on the future of Saint John. This is a tremendous response and the opinions and comments once again show the commitment the people of Saint John have to our city. The Citizens Advisory Group analyzed, debated, reviewed and understood this information. It became the basis for our Community Vision Statement. ,4111 full, 57 VISION 2015 CITY OF SAINT JOHN OUR SAINT JOHN OF "rHE FUTURE NOVEMBER 2007 The second objective of the project was to identify goals to ensure a clear picture of the needs of the community. The public consultation process was enhanced by hosting an open workshop to assist the Citizens Advisory Group to define community needs. Stakeholder groups and interested individuals from the community were invited to participate in this workshop by public advertisement and direct mailing. Shaping the Vision, A Community Conversation was held on September 25 and 26, 2007 with close to one hundred and fifty individuals attending the two -day workshop. Facilitators from Jacques Whiffiord expertly guided the participants through a series of sessions to collaboratively develop community goals and to provide feedback on a draft vision statement. At the end of the workshop, substantial progress was made. A set of draft community needs was prepared and ready for the next stage of the engagement. Additional input from a number of stakeholder groups on the draft goals was provided to the Citizens Advisory Group before the final version was prepared. OUR SUSTAINABILITY PRINCIPLES An important goal of the Community Vision project was the development of sustainability principles. The City of Saint John Environment Committee was requested to review and modify the Melbourne Principles to make them applicable to Saint John. The Melbourne Principles were developed to assist cities that wanted to achieve sustainable development. They provide a set of statements on how a sustainable city would function and were intended to guide thinking, and provide a strategic framework for decision making. The Principles are not prescriptive. They allow cities to develop sustainable solutions that are relevant to their particular circumstances and this was the approach taken by the Environment Committee. The Environment Committee completed this initiative and presented the sustainability principles to Common Council in June, 2007. The principles guided the development of the vision and the goals, and are an important component of the whole systems approach to the project. SUSTAINABILITY PRINCIPLES FOR SAINT JOHN Sustainability Principle One Provide a long -term vision for Saint John based on the pillars of sustainability: social / cultural, environmental and economic. Elaboration P- Sustainable development is the process of balancing the need of humans for economic and social development with the need to protect the natural and built environment. Balancing these three areas is commonly referred to as the "Triple Bottom Line ". These needs must be met not only in the present, but in the indefinite future. Sustainable development is defined 9 441 %1 8411, -ill ff.1 VISION 2015 OUR SAINT JOHN OF THE FUIURE CITY OF SAINT JOHN NOvF.MBER 2007 as development that meets the needs of the present without compromising the ability of future generations to meet their own needs (Brundtland Commission). uu Saint John is a city experiencing substantial changes to its social, cultural, economic and environmental characteristics. A long -terra vision, which is developed with the community, will ensure the informed governance and management of its resources. 10111, A vision founded on the principles of sustainability will incorporate the needs of all sectors of society. Promoting a legacy of human and natural resource conservation and reflecting the individuality of Saint John are prerequisites. Sustainability Principle Two Recognize and incorporate the valued and distinctive characteristics of Saint John - including its human, cultural, historical and natural attributes - in our vision and planning for a sustainable city. Elaboration II Saint John has distinct human, cultural, historic and natural characteristics. It is important to incorporate these characteristics into a plan because this will motivate people in Saint John to achieve sustainable development and regeneration. 0, Our local leaders should understand the human and natural characteristics that define our community. Because these characteristics change over time, our local leaders should participate in ongoing community engagement to ensure they remain in touch with the changes in Saint John. II Understanding these characteristics and their historical context will assist local leaders to gauge the long -term consequences of the decisions made about growth, urban form and the natural environment. Sustainability Principle Three Engage the entire community of Saint John in the planning and implementation of sustainable solutions. Elaboration ► The journey towards sustainability requires strong support from within the community. It is critical to have the active participation of the community in all stages of the process, from long -terra planning to implementation of solutions. 1111 People have a right to be involved in the decisions that affect them. Attention needs to be given to empowering those whose voices are not always heard. Everyone in the community should have the capacity to participate in their local government processes. 10 Vy .,1�j M VISION 2015 CITY OF SAINT JOHN OUR SAINT JOHN OF THE FUTUP E NOVEMBER 2007 Sustainability Principle Four Respect Saint John's natural ecosystems. Act as a custodian for the biodiversity and natural ecosystems of Saint John, and protect and restore them. Elaboration 0- Nature is more than a commodity for the benefit of humans. We share the Earth with many other life -forms that have their own intrinsic value. They warrant our respect, whether or not they are of immediate benefit to us. i It is through people's direct experience with nature that they understand its value and gain a better appreciation of the importance of healthy habitats and ecosystems. This connection provides them with an appreciation of this need to manage our interactions with nature respectfully. 0- Just as humans have the ability to alter the habitat and even to extinguish other species, we can also protect and restore biodiversity. Therefore, we have a responsibility to act as custodians for nature. Di Saint John is a coastal city where the Saint John and Kennebecasis Rivers join and meet the ocean. These freshwater, estuarine and seashore ecosystems are critical to the character and future of Saint John. Sustainability Principle Five Model the development of Saint John on the characteristics of natural systems. Elaboration liup Saint John can become more sustainable by modeling urban processes on the ecological principles by which natural ecosystems operate. ► The characteristics of ecosystems include diversity, adaptiveness, interconnectedness, resilience, and regenerative capacity. Incorporating these characteristics into the development of Saint John will make the city more sustainable, resulting in environmental, social and economic benefits. i For example, in nature there is no such thing as waste, just a resource for a new product. By striving for this in Saint John, we can increase our efficiency and minimize our ecological footprint. Sustainability Principle Six Strive to minimize Saint John's ecological footprint. 11 Vy 141%1 I[NI% M. VISION 2015 CITY OF SAINT JOHN OUR SAINT JOHN OP THE FUZ URE NOVEMBER 2007 Elaboration ! Cities consume significant quantities of resources and have impacts that extend well beyond their borders. Vuui One way of describing the impact of a city is to measure its ecological footprint. The ecological footprint measures the `load' on nature imposed by meeting the needs of its population. It represents the land, water and air necessary to sustain current levels of resource consumption and deal with waste discharged by that population. Reducing the ecological footprint of a city is a positive contribution towards sustainability. kr Like any living system, Saint John consumes material, land, water, air and energy, and generates wastes. This is the `metabolism' of the city and it can be made more efficient to reduce our ecological footprint. Reducing the footprint involves solving problems locally, rather than shifting them to other geographic locations or to future generations. dour, Using tools such as Life Cycle Assessment in decision making helps to identify and implement sustainable habits and practices. Sustainability Principle Seven Achieve long -term economic stability and social security in Saint John. Elaboration tu. Long -term economic and social stability and security are prerequisites for beneficial change and are dependent upon environmentally sound, sustainable development. To achieve "triple bottom line" sustainability, economic strategies need to increase the value and vitality of human and natural systems. Economic strategies should seek to meet basic human needs in a just and equitable manner through fair allocation of resources, and should enable access to potable water, clean air, food, security, shelter and safe sanitation. 10, Cities support and nurture human diversity; their policies, structures and institutions can significantly contribute to fostering cohesive, stimulating, safe and fulfilling communities. Sustainability Principle Eight Foster communication among community groups and organizations to emphasize sustainability as a common shared goal. Elaboration Vlum Develop and strengthen new and existing networks within Saint John. Promote multi- disciplinary partnerships to facilitate the transfer of knowledge, build capacity and support continual environmental, economic and social improvement. 12 SU'l 11,11N M VISION 2015 CITY OF SAINT JOHN OUR SAINT JOHN OF THE FUTURE NOVEMBER 2007 llio The people of Saint John are the key to making our city sustainable. It is critical that the people of Saint John be well - informed and that they can easily access and share knowledge. The energy and talents of people are maximized by working together through such networks. uuu: There is also value in Saint John sharing its experience with other communities, pooling resources to develop sustainability tools, and supporting and mentoring one another through regional networks and collective efforts. Su sta in a b ility Principle Nine Promote sustainable production and consumption through the use of environmentally sound technologies and effective demand management. Elaboration Ili A range of approaches and tools can be used to promote sustainable production and consumption in Saint John. Increasing public awareness about these approaches is a valuable strategy to achieving sustainability. tllllm!, Demand management means conservation of resources and reduction in consumption. This approach can also provide significant savings in infrastructure investment. @m Sustainable production is achieved by using environmentally -sound technologies. These technologies are less polluting, use resources in a more sustainable manner, recycle wastes and bi- products, and handle all remaining wastes in an environmentally acceptable way. It!I. Environmentally sound technologies can create economic growth, reduce environmental impacts, enhance value along a supply chain, and support responsible product stewardship. Sustainability Principle Ten Establish a systematic process of continual improvement, based on action planning, accountability, transparency and good governance. Elaboration Good governance requires processes that achieve sustainability through continual improvement. While in some areas, gains may be incremental, there are also opportunities to make much more substantial improvements through innovative strategies, programs and technologies. 111 The continual improvement cycle requires relevant indicators, targets based on benchmarks and monitoring of progress against milestones to achieve these targets. This facilitates progress and accountability and ensures effective implementation. 01 Transparency and openness are a requirement of good governance. �> 13 U . 1�i♦1 k'll1 62 VISION 2015 OUR SAINT JOHN OF THE FUTURE OUR COMMUNITY VISION In April 2007, the Citizens Advisory Group launched a public consultation by asking, "What are your hopes and dreams for Saint John ?" The response to the five questions was tremendous. The Citizens Advisory Group received and analyzed well over fifteen thousand ideas on the future of Saint John. It was evident that Saint Johners care deeply about the future of our city and the Citizens Advisory Group considered it a privilege to review and understand the community's response. A vision statement is a shared description that will provide purpose, direction, and inspiration as we define what we want Saint John to be in the future. The Citizens Advisory Group is proud to share a Community Vision for Saint John — a vision that has been developed through ideas and opinions expressed by the citizens of Saint John. CITY OF SAINT JOHN COMMUNITY VISION STATEMENT OUR SAINT JOHN OF THE FUTURE CITY OF SAINT JOHN NOVEMBER 2007 What do you value about Saint John? What is it like for you to live here? What changes would you most like to see in the community? What are your hopes and dreams for Saint John in 100 years? What could you do to make these hopes and dreams happen? Our Saint John, Canada's first city, leads the nation as an example of a sustainable community. Our Saint John was born of the water. Like the tides we live by, we are responsive to the constant changes in our environment, economy, and society. Our Saint John is a livable city designed for people where everyone can feel at home. We are diverse in cultures, rich in arts, full of exciting entertainment and recreational activities. Our Saint John provides educational excellence and life long learning opportunities to help people reach their full potential. Our dynamic economy is built on creativity, innovation and entrepreneurial spirit. Our Saint John is a population of problem solvers where each individual and organization has a vital role to play. It is a place where leadership is based on transparency, integrity, and trust. Our Saint John is a place where we overcome our challenges and live our dreams. This is our Saint John. OUR COMMUNITY GOALS The Citizens Advisory Group was asked to identify community goals to clarify and fulfill the vision for Saint John. The goals provide a further description of Saint John in the future and can be used to focus community attention and actions. The goals developed in this project are at a X 14 ,U,1 IMN 63 VISION 2015 CITY OF SAINT JOHN OUR SAINT JOHN OF 1 HE FUTURE NOVEMBER 2007 high level and reflect the intent of the vision. They state what we want to achieve for the future of Saint John. TWENTY YEAR COMMUNITY GOALS Social Our City has a strong sense of community and belonging. We live active and healthy lifestyles supported by a diversity of parks and open spaces, recreation facilities and programs, cultural and social events and public gathering places. Our City provides a diverse and seamless array of educational opportunities that promote individual self - sufficiency, innovation, creativity and life -long learning. Educational programs are supportive of our community and economic environment. Our City has a flexible and adaptive housing market that meets the range of needs within our community. Affordable and suitable our housing market contributes to beautiful and diverse neighbourhoods that evoke and encourage a strong sense of place. Economic Our City has a diverse, vibrant, resilient, environmentally sound economy that actively supports wealth creation, innovation, entrepreneurship and individual economic well- being. Our City offers a variety of economic and employment opportunities where individuals thrive with exciting employment options that reward them for their service. Environment Our City recognizes the inherent responsibility of every individual and organization to embrace a shared commitment to environmental stewardship. We are dedicated to living in balance with our natural settings and decreasing our demands on (mite natural resources. Our City has magnificent waterfronts with public access and bicycle and pedestrian trails that connect the entire city. Life without a car is perfectly possible and enjoyable. Infrastructure Our City serves the access and mobility needs of all people through an evolving array of convenient, comfortable, affordable and efficient modes of transportation. Our City insists on the highest standards of quality in architecture, landscaping, infrastructure management and urban design. Our natural and built heritage is a key component in developing new and renewed places to live, work, play and learn. N. 15 64 VISION 2015 OUR SAINT JOHN OF THE FulURE Governance CITY OF SAINT JOHN NOVEMBER 2007 Our City fosters civic engagement and pride through responsible, cooperative, inclusive and fiscally responsible government that is accountable for achieving results that matter most to our community. Our City plays a leadership role with other local, provincial and national elected officials to address common challenges and opportunities for our community. VISION 2415 NEXT STEPS The future is exciting for Saint John and Vision 2015 will build on the success of the public engagement process. Now that we have a community developed vision and goals we can begin to translate vision into action by specifying measurable outcomes, strategy, action plans, and performance measurement. Next steps for Vision 2015 include, 1uu. Implementation of a new governance model for the City of Saint John, bi, Collaboration with the Province of New Brunswick on Sustainable Communities, lill Development of an Integrated Community Sustainability Plan, hr Development of a Council Priorities and Strategic Policy Plans, loin Development of a Corporate Strategic Plan, and uou, Development of a Service Delivery Plan. 65 VISION 2015 CITY OF SAINT JOHN OUR SAINT JOHN OF THE. Fui URE NOVEMBER 2007 RECOMMENDATIONS The following recommendations are proposed. That this report, termed Vision 2015 Our Saint John of the Future, dated November 26, 2007, be received and approved. That Common Council endorse the Community Vision Statement, Twenty Year Goals and Sustainability Principles for Saint John. That Common Council extends appreciation to the thousands of people who participated in the public consultation process. That Common Council recognizes the commitment and effort of the Saint John Environment Committee in developing Sustainability Principles for Saint John. That Common Council commends the leadership and commitment from the Vision 2015 Citizens Advisory Group throughout the public engagement and that their role be deemed completed with the approval of this report. Respectfully submitted, Councillor Glen Tait Chair Vision 2015 Committee 1. 17 • • Council — Committee System A Discussion Paper February 2006 67 OUTLINE Introduction Section 1 - -- Foundation Principles What Governance Principles should apply? Why are the principles important? What is the purpose of Municipal Government? What is governance? What is the role of Council? What is the role of the Councillors? What is the role of a Committee of Council? What is the role of the CAO and of Staff? Section 2 - -- Desired Outcomes The need for a common purpose. What does Council expect to achieve? Section 3 - -- Structure What types of Committees are there? How does a Committee function? What are the pros and cons of the Committee system? How are the Committees struck? Section 4 - -- Process How does the Committee process work? How do the ABC's interact with the Committees? Section 5 - -- Next Steps Research Project Team Selection .: PA `DEMOCRATIC GOVERNMENT IS MORE THAN A FORM OR ORGANIZATION AND MORE THAN CLEVERLY DESIGNED MACHINERY' R.M. Dawson and W.F. Dawson in Democratic Government in Canada .• 3 PURPOSE The purpose of this background paper is to assist the 2015 Advisory Committee in developing a sound recommendation to Common Council respecting the introduction of a Council Committee system. The primary goal should be to create a new governance system that meets the needs and interests of the citizens of Saint John. The Committee will have to consider a wide variety of alternatives in formulating its recommendation and it is hoped that the principles, issues and considerations addressed in this document will stimulate discussion and debate and encourage informed decision making that will serve the citizens and the organization well for many years to come. INTRODUCTION The use of a Council- Committee structure in municipal government is commonplace. Its particular form and functioning is as varied as the many municipalities that have implemented this system. An effective Council - Committee system is predicated on absolute clarity as to; the anticipated purpose and expected outcomes of a committee system, the primacy of the Council in the structure, the governance roles of the Council and individual Councillors, how the various participants are to interact with Council and staff, and the decision making and administrative processes that support the structure. More particularly, the adoption of a standing committee system necessitates delineation between the governance role of Council and the administrative role of staff. The roles must complement and support each other and minimize the potential for conflict. It will be evident that implementation of the Council- Committee system will require a series of choices. The practices in other communities can be used only as a point of reference. The design of our Committee system must consider the many issues in a manner that best responds to the needs of the citizens of Saint John. How many committees, what is their mandate, what happens to the ABC's, who makes appointments to the standing committees, what is the role of citizens, what legal mechanisms are used, who selects the Chairperson and what is the role of the committees in the administration of the departments, are but a few of the practical matters to be addressed. These decisions will influence not only the effectiveness of Council and their committees in the new structure but also how their governance role is played out in the public forum and how an array of citizens, interest groups and special purpose boards and commissions interact with their local government. The importance of developing an effective model cannot be understated. 2 70 Chartwell recommendations The starting point is the model and the concepts presented in the Chartwell Report. Chartwell has recommended that `the City of Saint John consider a Committee of Council structure (7.3.1 d) that in whole or in part, supports the programs defined as part of the mandate of the City.' It further recommended that all the current committees be disbanded and replaced with eight/nine standing committees of Council and that at least one member of Council be appointed to each of the Committees. The text of the report explains that the Standing Committee structure is intended to improve reporting relationships that the ABC's have with Common Council, thereby increasing transparency. Chartwell (7.3.$) also points to a need for greater clarity to be given to Common Council about the role that it plays vis -a -vis interaction with the City administration, and the role that it plays vis -a -vis governing the City and their affiliated agencies, boards and commissions. An Integrated Principled Approach The development of an effective and productive Council - Committee system will involve consideration of a broad array of issues, alternatives, and practical matters. The choices and decisions that are made will have a direct impact on the functionality and quality of the new committee system. The challenge is to avoid incremental decision making in a quagmire of detail, personal opinion and best intentions. The 2015 Advisory Committee should approach the development of the Committee system in a comprehensive and integrated manner by; • Identifying objective foundation principles that can be used to guide decision making throughout the developmentprocess, then • clarifying the purpose of the system from a governance perspective to ensure a common understanding of desired outcomes and relevance to our operating environment, then • setting out the decision making processes that respect both the foundation principles and governance roles that will serve to achieve the intended purpose, and, then • addressing the many structural practicalities that need to be resolved to give the model form and make it workable. Notice that the practicalities are deliberately left to the end of the process. The number of committees, the number of members, the selection of a chairman and the methods of appointment are relevant only after the governance roles and desired outcomes (e.g. program alignment) of the new committees and Committee system are known. 71 SECTION 1 --- FOUNDATION PRINCIPLES What Governance Principles Should Apply? Local governance in Canada has its roots in Saint John as Canada's first incorporated city. Consideration of basic democratic principles should serve as a secure foundation for the development of the Council- Committee system. The issues and practicalities that must be addressed are complex and interrelated. These principles will serve as an effective touchstone to give ob.._ jective consideration to assessing the many alternatives that will need to be resolved as part of the development process. Seven generally accepted principles of a democratic governance system are relevant reference points for the transition to a Council- Committee system. ❖ Democratic — The governance structure rests on the will of the people and is responsive to their opinions. It implies... a number of vitally important beliefs and traditions which have been woven into the democratic fabric and become inseparable from it. Among these are tolerance and a proper consideration for the opinions of others, freedom of discussion and criticism, freedom of religious beliefs, a respect for law, a regard for the wishes of both the majority and the various minority groups into which the people are divided.' ❖ Representative - The principle is that the people act indirectly through others to whom they have delegated authority. `Representatives' are elected to speak and act for groups of voters. Municipal councils are composed of such representatives, elected by the people to act in their name and on their behalf Z Rule of Law - The principle exists to protect the citizen against possible excesses of authority by government officials. It means that the government itself is controlled by the law and must operate according to its terms, and that all acts of government must be based on a law and not on a whim or caprice of the officials who may happen to be in authority.3 ❖ Responsive - [Local government] exists to serve the citizen and to provide him with a better life. It is his government and the satisfaction of his wishes and his needs is the purpose for which it has been created. The government must therefore be constructed in such a form and its relationship to the citizen arranged in such a way that this primary aim can be realized in a vast and varied area.4 1 McGregror, Dawson and McGregor, Democratic Government in Canada, University of Toronto Press, 1971, p. 4 2 Ibid. p. 5 ' Ibid, p. 12 Ibid p.3 CA 72 ❖ Accountable - Refers to the close relationship that exists between elected officials and their constituents at the local level. In fact, it is frequently said that local government is the level of government "closest to the people". It is not enough, however, to be close to the people it is also necessary that local government see itself as answerable to the citizens for its actions or lack thereof.5 ❖ Accessible - Generally considers the ability of the public to make their views known to those elected. Ready access is viewed as positive in so far as it strengthens the accountability and responsiveness of the local government body. Procedural matters, notice provisions, time and location of meetings etc. are all aspects of accessibility. As with openness, there is a need to strike a healthy balance between accessibility and protecting the municipality's financial and legal interests and the confidentiality of personal information.' •S Transparent/Open - Commonly recognized as a fundamental element in a democratic system of government. It goes beyond simply determining what matters are placed on the open session agenda at a particular Council meeting or accessing processes that allow citizens to scrutinize the workings of their local government. Openness suggests that citizens should be privy to the facts, the issues, the debate and the vote on all legislative matters before Council. Citizens are then able to access the performance and responsiveness of those elected. Adhering to these principles will serve to guide the Vision 2015 Committee in its deliberations and provide the foundation far a new governance system that acknowledges and respects the central role of citizens in local government. Why are these principles important? The principles 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. The new Committee structure and governance processes must also stand up to careful scrutiny. If the resulting Committee system, ultimately adopted by Council, is perceived to be either in its structure or functioning, less democratic in its approach, less transparent to public scrutiny, less responsive to community needs and concerns, lacking in accountability for its actions or inaction, acting above the Iaw, less accessible to citizens and interest groups and/or ultimately less effective in its outcomes then this new structure will have failed. It is the responsibility of the 2015 Advisory Committee acting with Council to ensure that the end results are truly advantageous for the citizens of Saint John. Reference to the 5 K. Antof , J. Novak, Grass Roots Democracy, Local Government in the Maritimes, Henson College, Dalhousie University, Halifax, 1995. p. 155 -7 e Ibid T Ibid 7 73 above noted governance principles will provide a means or identiCying and ex lainin the potential benefits of the new system to citizens, staff and other participants. GOVERNANCE ChartwelI states (p 82) that `there needs to be greater clarity given to Common Council about the role it plays vis -a -vis interaction with the City administration, and the role that it plays vis -a -vis governing the City of Saint John, the Committees of Council and the affiliate agencies, board and commissions'. This governance role is exercised through the government structure and is therefore inextricably linked to the move to a Council - Committee system. This section highlights some of the key considerations of the various governance roles and responsibilities. What is the purpose of Municipal Government? A reference to academic literature is in order here. `That reason [municipalities exist] is to provide a mechanism for inhabitants of defined local areas to express debate and resolve local issues and concerns. In other words, municipal governments perform a political role.'8 In brief, that political role includes; • Representing the views of local inhabitants • Choosing between alternative courses of action • Setting priorities for the allocation of scarce resources • Answering for these decisions to the local electorate The authors leave no room for confusion on the primary governance role of the Council and the importance of seeing the service delivery role as secondary to their representative role. `The municipality can be regarded as an extension of the community, as the community governing itself. The service delivery role is subservient to this political role; services are provided in accordance with the needs and wishes of the local inhabitants.i9 What is Governance? The Institute on Governance is a non -profit organization that explores, shares and promotes good governance in Canada. In a recent Policy Brief, it points out that `governance is not synonymous with government. This confusion of terms can have unfortunate consequences. Partly [governance] is about how governments... interact, how they relate to citizens, and how decisions are taken in a complex world. Thus 8 Tindal and Tindal, Local Government in Canada, 4th edition, McGraw Hill Ryerson, 1995, p. 2 -4 9 Ibid 74 governance is a process whereby societies and organizations make their important decisions, determine whom they involve in the process and how they render account'. 10 The authors offer that governance is about `the traditions, institutions and processes that determine how power is exercised, how citizens are given a voice, and how decisions are made on issues of public concern." An important distinction must be made by the 2015 Advisory Committee between governance and government. The Committee- System is a government structure. Governance should be viewed as the processes at play in the government structure in order to satisfy the needs and concerns of the citizens it serves. ROLES AND RESPONSIBILITIES 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. The Councillors, the Council, the Committees of Council and staff each plays a particular role in this governance system. What is the Role of the Council? Council is a political body in that it must make decisions on the allocation of resources, establish community priorities and legislate on a range of other matters on behalf of the citizens who elected them. George Cuff proposes, that `while a municipality may establish committees and other advisory agencies to examine certain matters, there ought to he little question as to the np_mac of a council in making the final, formal decision. Council committees represent but one of a series of decision - making processes that enable members of council to fully grasp the issues under review, their policy and budget consequences and their potential impact on the public. The Council meeting is, however, the forum where the decision should be finally considered and either approved or denied or, from time to time, referred back to the administration for additional research on any outstanding questions. The notion that standing committees of council, with less than the full council in attendance, can make final decision on behalf of the body is fraught with problems that need to be discussed before such authority is delegated. Significant policy matters, however, should not be adjudicated by anyone other than the body as a whole.' 12 10 J. Graham, B. Amos, T. Plumptre, Principles of Good Governance for the 21 st Century, Institute on Governance, August 2003, p. I " Ibid. 12 G. Cuff, The Use and Abuse of Committees, Municipal World, January 2006, p. 35 -36 0 75 Council is the elected body and it alone has the authority to make decisions, take action, adopt policies and enact bylaws put forward on behalf of the electorate." The Standing Committees play a support role, albeit a significant one, in the decision making process. The 2015 Advisory Committee should understand that given the primacy of the Council, the decision making role of Council must be respected by the Committees just as the jurisdictional mandate of the Committees must be respected by Council if the new system is to function properly. What is the Role of the Councillors? There can be no doubt about the governance role of Councillors in the New Brunswick municipal context. The Municipalities Act 14 speaks directly to this matter. A Councillor of a municipality shall; a) Consider the welfare and interests decisions of the entire municipality when making 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) Perform any other duties conferred upon him or her by this or any other Act or by council Two considerations stand out and are worthy of comment. First each Councillor is obligated to always consider the `welfare and interests of the entire municipality'. This is particularly relevant in a committee system as it precludes considering only the interests of a particular department (fire, police) or only the interests of a particular individual or special interest group (Minor Hockey Association, Board of Trade) when making recommendations. The practical implication is that the Councillor's perspective and that of the 2015 Committee must be that of the best interests of the entire community when making recommendations to Council. Secondly, the legislation obligates Councillors to play a role in `developing and evaluating the policies and programs' of the City. There is a clear separation of the policy making role of the Councillors and the administrative role of the staff. The legislation specifically excludes from the role of` Councillors, the day to day 'administration' of individual departments or the City in general. This administrative role rests with the appointed officers and employees of the organization. 13 s 4(3), 9(1), 10.2(2.1) Municipalities Act, RSNB, c M -22 is s 36(2.1) Municipalities Act, RSNB 1992, c. M -22 10 76 What is the Role of a Committee of Council? The Council, as a democratically elected body, speaks for the community. A committee is merely a creation of the Council. It exists only because Council wants it to exist and it has only those powers and authority that Council can expressly delegate to it. In effect, it becomes an extension of the Council. In a standing committee system, the Committee becomes not only the eyes and ears of the Council on certain prescribed matters but also the voice of the Council. It does not however, have the policy, bylaw or decision making authority of the Council. Acting on behalf of Council, essentially its purpose is to consult with citizens, the CAO, departmental staff, interested groups and to make recommendations to the Council. It is the Council that makes the decision to accept/reject/modify the recommendations or to return them for further consideration. A Standing Committee also exercises an oversight role over one or more program/service areas on behalf of Council. Note that it is an oversight role and not an administrative role. The committee fulfills this role by ensuring its `program plan' is being implemented as intended, determining if established performance objectives are being realized by the departments /ABC's, making sure that community issues are being properly considered and making recommendations to the Council. It also plays a key policy development role in that it `recommends to Council' the critical program plan, new initiatives, service and program priorities, budget allocations, service objectives, and new or amended policies. What is the role of the CAO and of Staff A move to a Council - Committee system from a pure Council- Manager system necessitates a refinement of the roles and responsibilities for the CAO. This is fundamental for both the Council and the CAO if the working relationship is to be productive and expectations are to be achieved. In general, the CAO is appointed by a Council and is responsible for - the overall administration of the City, to provide policy advice to Council and to see to the implementation of the decisions of Council in an efficient and effective manner. These responsibilities are reflective of the statutory delineation of the `policy' role of elected representatives and the `administrative' role of staff. The reality is that the CAO and the Council interact on an ongoing basis and the clear separation of the policy and administrative roles is difficult to define in practice. For example, the CAO may initiate a new policy for Council's consideration and Council relies regularly on the advice of the CAO when formulating policy. 11 77 A brief summary of the key roles of the CAO as drawn from the literature and practice is in order at this point, namely to; ➢ Provide leadership and coordination at the staff level ➢ Provide expanded research and analysis capability Offer comprehensive advice and recommendations Ensure accountability and responsibility for the administration ➢ Administer the programs and direct/coordinate the staff ➢ Coordinate the advice and recommendations by staff ➢ Place recommendations in broader perspective of city's needs as a whole ➢ Act as a policy advisor to Council ➢ Prepare and submit the annual budgets ➢ Make recommendations as deemed advisable Planning and coordinating the work of the administration and ensuring accountability for results is no less important in a Council- Committee system. The question is how to ensure that the CAO is able to effectively fulfill this mandate in the new system. The 2015 Advisory Committee must give detailed and explicit consideration to the leadership/ advisory /coordination /accountability role of the CAO in the new Council - Committee structure. Consultation with other jurisdictions could be beneficial in this regard. SECTON 2 -- DESIRED OUTCOMES The need for a Common Purpose Decisions about the allocation of economic resources during budget deliberations, establishing development priorities, supporting bylaw enforcement activities, resolution of zoning and land use issues, adoption of staff policy recommendations and considering the many trade -offs involved in each of these matters are made by Council on an ongoing basis. These day to day decisions of the Council have a direct effect not only on the quality of life in the community and but also on the vibrancy, economic health, and character of the community in the long -term. These issues are also dealt with at the administrative level by departments, City mandated Boards and Commissions and a variety of agencies through which City representatives participate either directly or indirectly. Chartwell considered the challenges of the current model extensively in its report and proposed that a Council- Committee system would help to disentangle the somewhat fragmented system currently in place. The 2015 Advisory Committee should recognize that shared understanding of roles and responsibilities in a new committee system will do little if there is not also a common desire for specific outcomes that will benefit the `welfare and interests' of the residents of the community. 12 78 What does the Council expect to achieve? The question here is not what the system will look like or what the roles of the various players will be but more fundamentally how citizens will benefit with adoption of a new Council— committee system. The move to a committee system should seek to achieve more than just a new reporting structure. Simply put, how will Council's governance role improve and how will the citizens of Saint John benefit from the new structure? The outcomes presented below are intended to help trigger more debate by the 2015 Advisory Committee and are based on the discussions to date and the general themes in the Chartwell report. They are not intended to be exhaustive nor exclusive; Increased efficiency and effectiveness in operations ➢ Ensuring citizens realize real value for their money ➢ Enhanced citizen input in the decision making process ➢ Better decision making at the Council table ➢ More thorough consideration of community issues Clarity of purpose and a common sense of purpose Improved accountability /transparency for decisions Closer scrutiny of the policy matters put before Council Increased responsiveness to citizen needs and concerns ➢ Allowing Councillors to exercise leadership in their field of interest/expertise ➢ Better alignment of services with the goals of the organization ➢ Improved coordination of service delivery ➢ Minimize fragmentation of functional silos The 2015 Advisory Committee must give explicid consideration to the desired outcomes as these will eventually serve as the performance measures to determine whether or not the new committee system has achieved its intended purpose or if modifications are in order. PRACTICAL CONSIDERATIONS With an understanding of the guiding principles, clarity about the roles and responsibilities of the various participants and a common sense of purpose, the focus must now turn to the actual committee structure and the processes that make it work. SECTION 3 - -- STRUCTURE What types of Committees are there? Standing committees are constituted to perform a continuing function, and remain in existence permanently. A standing committee must be constituted by name, by a specific 13 79 provision of the bylaws, or by a resolution of Council. A standing committee reports to the Council and not to an executive committee!! A special or ad hoc committee is a committee appointed as the need arises, to carry out a specified task, at the completion of which -- that is on presentation of its final report to the Council it automatically ceases to exist. A special committee may not be appointed to perform a task that falls within the assigned function of an existing standing committee. 16 Note that both Standing Committees and Ad -hoc Committees are created by the Council, exercise their mandate on behalf of the Council and report directly to the Council. Standing committees can also delegate certain tasks or undertakings to Sub - committees. In this respect, they are created by the Standing Committee and report to the Standing Committee. Unless advisory in nature, the sub - committee would cease to exist upon submission of its report or findings to the Standing Committee. The use of Special or Ad -hoc committees and Sub - committees allows for extensive citizen involvement in the development of policies and programs without diminishing the representative role of an elected Councillor and the need for public accountability. The fundamental question to be resolved by the 2015 Advisory Committee is the number of Standing Committees to be created and the specific mandate or span of control of each. The use of Special, Ad -hoc or Sub - committees can be addressed in due course once the Standing Committees have been established. How does a Committee Function? Committees meet in public on a regular basis to consider matters presented by staff or referred by Council. The operation of the committee is less restrictive from a procedural perspective and encourages debate and discussion on the various matters put before it. Cuff summarizes the operation as follows. `The Committees consult with department officials, citizens and interested parties and report their findings and recommendations to the Council for action. Their role is to initiate policy as they cannot act except with the approval of the Council as a whole. The number of standing committees varies... and may range from three to eight with six or seven being an average number. In this system, the Mayor, who is elected at large, serves as an ex officio member of each Committee. The result is that each councilor usually serves on two or three committees at one time.' 17 The recommendations of the Committee are presented to the Council for debate and adoption. The Council is not bound by the recommendations but should expect that the committee has exercised due diligence in its deliberations. 15 Rules of Order, 10th Edition, Perseus Publishing, October 2000, p 474 161bid 17 G. Cuff, The Use and Abuse of Committees, Municipal World, January 2006, p. 35 -36 14 I Cuff offers that `issues at the committee level should preferably be viewed in the context of "a decision in process" and thus open to probing for the best mix of policy options, while reserving the prerogative of redesigning the final report that will be presented to council.'' 8 The 2015 Advisory Committee must give full consideration to the mandate of the standing committees, the extent of their delegated authority, citizen participation in the decision making process and coordination and integration of departmental programs and the mandates of the ABC's as part of the development of the new system. What are the advantages and disadvantages of the Council- Committee system? The academic literature draws from the extensive application of the Council- Committee system in practice. Tindal and Tindal, in their text on local government, provide a straight forward summary of the main advantages and disadvantages.' 9 Pros - advantageous because • Speeds up work in Council as Committee can sift through the details and make a positive recommendation • Allows councilors to specialize in the fields of administration under their jurisdiction, rather than attempt to be knowledgeable in all fields • Informal committee atmosphere encourages more give and take in debate • Facilitates participation by municipal officials • Better opportunity for interested groups and citizens to be heard • Referral to a Committee gives an opportunity for public opinion a chance to develop and be heard and avoids precipitous action • Establishes clear lines of authority and accountability Cons — disadvantages • Referrals from council to committee and back can result in slow decision making and buck passing • If discussion is duplicated in Council chamber time is wasted and value of committee scrutiny is lost • Too many committees and councilors time is overburdened • Creation of standing committees where volume of work is not warranted • No terms of reference, no regular meeting schedule, no systematic reporting procedure 18 G. Cuff, The Use and Abuse of Committees, Municipal World, January 2006, p. 35 -36 'g Tindal and Tindal, Local Government in Canada, 4th edition, McGraw Hill Ryerson, 1995, p. 164 -161 15 • Tends to reinforce departmentalization in municipal organization and contribute to fragmentation because committee members put the interests of their departments first • Risk if committees simply reflect municipal departments. If the departments grew without sufficient forethought and if this structure is poorly organized for coordination etc then what can you expect from a committee system similarly designed • Members become overly preoccupied with matters of administrative detail and internal management • Neglect broader consideration of community needs p 169 • Department heads can use committee to block CAO initiatives p178 • Jurisdictional confusion/conflict when issues straddle several committees (location of a road or pipeline) The many potential disadvantages described above may rightly give cause for concern. The challenge for the 2015 Advisory Committee is to structure the committee system to achieve the real advantages and avoid or minimize the potential for the problems to arise. The system however, will never compensate for a Councillor that chooses to operate outside the established structure or a Committee or a Council that allows this to happen. How are the Committees struck? Council creates the Standing Committees by bylaw or resolution. The 2015 Advisory Committee will as part of its deliberations have to give advice to Council on a number of practical matters related to the creation of the standing committees. These include but are not limited to; • Number of Committees — alignment programs and ABC's • Mandate — authority and span of control of each committee • Extent of delegated authority to each committee • Participation of elected vs non - elected members • Number of members on each committee • Terms of office of each member • Selection of a Chairperson • The appointment process — who decides • Determining the legal provisions required — bylaw, statutory • Establishing the administrative process to support the Committee system • Non - performance — what then A key driver in the determination of these factors will be the alignment of the various programs with the Committee system. The Chartwell concept should be used as a starting point but more analysis will be necessary to develop an effective structure. For example the number of standing committees in the Chartwell model is onerous and risks creating a more fragmented operation rather than a fully integrated and coordinated organization. 1C 82 SECTION 4 - -- PROCESS How does the Committee process work? Key in the development of the Council- Committee system is the need to establish timely and effective processes to support the deliberations of the Committees. The way the Committee operates, how it interacts with Council and how it interacts with staff on an ongoing basis are fundamental aspects to be determined. Some of the more practical issues to be addressed include; ➢ How do business matters appear on a committee agenda? By Council referral, staff submission, CAO report, citizen request, Councillor initiative, all of the above? ➢ How does the CAO interact with the Committee? o Attends all committee meetings? o Approves /Comments on all staff reports? ➢ Can a Committee give direction to a staff member or only the CAO? ➢ What staff support will be required for minutes, agenda preparation etc.? ➢ How often and where do the Committees meet? ➢ What are the public notice requirements? ➢ How are jurisdictional conflicts resolved between committees? ➢ What authority, if any, do they have to authorize expenditures or change budget allocations? ➢ What type of information is submitted by the Committee to Council? The goal of the Vision 2015 Committee is to recommend processes that meet the information/decision needs of the Committees, provide clarity and certainty to the CAO, staff, public and Councillors, encourage effective decision making (at Committee and Council level) and minimize the possibility of confusion and conflict. The processes should also encourage public participation and input at the Committee level. How do the Committees Interact with the ABC's? An equally important issue to resolve will be the question of how the existing Boards and Commissions interact with the Committees. There is an opportunity to clarify the reporting roles, improve overall accountability for various municipal activities currently under the jurisdiction of independent Commissions (transit, parking etc) and to provide consistent/coordinated direction regarding policies and priorities of the City with the implementation of the program plans. The nature of the reporting structure and the working relationships will have to be considered in light of the particular mandate (statutory etc.) of each ABC and the number of standing committees that are determined to be appropriate. 17 83 Clarity as to the purpose of the new Committee structure will be necessary in order to effectively communicate the merits of the new reporting relationship, and ensure the active participation of the representatives of the various ABC's. The 2015 Advisory Committee should recognize from the outset that the transition to this new reporting relationship will not only take time but will also necessitate a change in mindset at the Board and Commission level. Reference by the 2015 Advisory Committee to the identified principles, best practices and clarity as to purpose and desired outcomes will allow far timely and effective disposition of these practicalities. CONCLUSION A. well developed Council- Committee system offers the potential of increasing the accountability, responsiveness and accessibility of Common Council to the citizens of Saint John. It also offers the advantages of improved governance through better decision making at the Council level and better coordination and integration of programs and services at the operational level. The challenge is to develop processes and structures at the Committee level that are founded on sound principles of local governance and are designed to achieve clearly specified outcomes. Local government exists to serve its citizens. The outcome should be a Council- Committee system that better responds to the needs and interests of the citizens of Saint John. 18 84 SECTION 5 - -- NEXT STEPS Research • Bylaws -- research committee structures in other jurisdictions • Legislative Review — City Government Act etc • Review practice in other Municipalities — interviews, visits • Closer Consideration and Refinement of the Chartwell Model — particularly the number of committees and the alignment with programs and ABC's • Invite a CAO/Mayor for a roundtable discussion with the 2015 Advisory Committee 19 85 Team The development team must bring together a combination of knowledge, hands on experience, research capability, legal expertise and varied perspectives in order to develop sound recommendations for the 2015 Advisory Committee. Following membership is proposed. • Elizabeth Gormley —role, practical application, experience • Brian Malone— experience, knowledge, interest • Mark Gillan - hands on perspective /interaction (dept with heavy investment, HR, community profile) • John Nugent — legal research, development, role • Greg Yeomans — perspective /interaction (lead dept during budget deliberations, interacts with all other departments, key issues for Council) • Kim Graham — resource — coordination with program/service alignment 20 I BIBLIOGRAPHY J. Carver, Toward a Greater Relationship Between the Public and Its Representatives, Public Management Review, Volume 3, Issue 1, March 2001 G. Cuff, The Use and Abuse of Committees, Municipal World, January 2006 McGregor, Dawson and McGregor, Democratic Government in Canada, University of Toronto Press, 1971 J. Graham, B. Amos, T. Plumptre, Principles of Good Governance for the 215` Century, Institute on Governance, 2003 Report of the Municipalities Act Review Panel, Province of New Brunswick, Sept. 1999 Rules of Order, 10'h Edition, Perseus Publishing, October 2000 T. J. Plunkett, The Financial Structure and Decision Making Process of Canadian Municipal Government, CMHC, Ottawa, 1972 Tindal and Tindal, Local Government in Canada, 4th edition, McGraw Hill Ryerson, 1995 Municipalities Act, RSNB, c -M22 M. McAllister, Governing Ourselves, The Politics of Canadian Communities, UBC Press, 2004 J. Graham, B. Amos, T. Plumptre, Principles of Good Governance for the 21St Century, Institute on Governance, August 2003 K. Antoft, J. Novak, Grass Roots Democracy, Local Government in the Maritimes, Henson College, Dalhousie University, Halifax, 1998. m 87 . lllgllq� M Prepared by o Project Team a part of Vision Program MMMM I • r ®fin The City of Saint John Strategic Decision- Makirg Model for the City of Saint John August 13, 2007 Strategic Decision - Making Model Table of Contents SECTION I: Political Organization Council - Policy Committee System .......................................................................................... ..............................1 VisionContext ......................................................................................................................... ............................... 2 UnderstandingPolicy ................................................................................................................ ..............................3 Strategic Decision- Making Model: Political Organization .......................................................... ..............................4 Roles& Responsibilities ........................................................................................................... ..............................4 Community(Citizens) ..................................................................... ............................... ............ 5 ...................... Council............................................................................................................................. ............................... 5 Councillors........................................................................................................................ ............................... 6 Committeeof the Whole .................................................................................................... ..............................7 Policy& Priorities Committee ........................................................................................... ........•...................... 7 StandingPolicy Committees ............................................................................................. ..............................8 StandingCommittee Chair ............................................................................................... ............................... 8 Chief Administrative Officer ( CAO) .................................................................................... ..............................9 DepartmentHeads 1 Staff ................................................................................................. .............................10 Agencies, Boards and Commissions ................................................................................ .............................10 Standing Committee Mandates ............................................................................................... .............................11 Committee Membership and Composition ............................................................................... .............................12 Chairand Vice-Chair Appointments ........................................................................................ .............................13 Committee Membership Appointments .................................................................................... .............................13 Termination of Standing Committee Appointments ................................................................. .............................13 StandingCommittee Rotations ................................................................................................ .............................14 SECTION II: Decision - Making and Administrative Processes Strategic 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 MeetingSchedules ................................................................ ............................... ....... .............................20 Saint John Governance Model i - Strategic Decision - Making Model for the City of Saint John 13, 2007 AgendaPreparation and Distribution ....................................................................................... .............................21 Standing Committee Reports and Minutes ............................................................................ ............................... 22 Public Notification for Standing Committee Meetings ............................................................ ............................... 22 MeetingRules of Procedure .................................................................................................. ............................... 23 Public Presentations at Standing Committee Meetings ........................................................... .............................24 PublicCorrespondence ......................................................................................................... ............................... 25 AdministrativeInquires ... ................................................................................................. ......... .., ......... ...................... 26 Agencies, Boards and Commissions ......................................................................................... ............................... 26 Adhoc and Sub - Committees ................................................................................................... ............................... 27 SECTION III: Practicalities of Implementation Council Commitment for Standing Committees .......................................................................... .............................29 MeetingFrequency .................................................................................................................. .............................29 Public Access and Participation ............................................................................................... .............................29 Preparation for Council and Committee Meetings .................... ........................P...... 30 Transition to a New Governance Model .......................................... ................... .................................................................. 30 Education.......... .. u... u ................ ............................... � .................. ............................,.. e....... .................... 30 System Interpretation .w.w.w.....w.w.w. ...w.w... ...na n......a . ........... __31 Respecting Governance Roles and Outcomes .. ............................... ...,..............,. .............................31 SystemEvolution....... ...... n. n..... n .... ............................... w....... ............ .........n......n...n.n...n.n32 Relationship to ABCs and Existing Committees of Council ......................... ......... .........,.................. ................................. 32 Additional Funding Requirements ............................................................................................ .............................33 Administrative Staffing ................................................... ............................... PlanningResources .................................................................................. ............................... .... 33 Public Notice, Awareness, and Education ................................ sa......,..................,,,,..,.,.,., .,.,.,... ......... ,...,......33 MeetingLocations ............................................................................................................ .............................34 By -law and Legislation Changes ........................................................................................... ............................... 34 SECTION IV: Conclusion ...................................................................................................... ............................... 35 SECTION V: References ............................................................................................................................................... ............................... 36 Saint John Governance Model sN Strategic Decision - Making Model for the City of Saint John August 13, 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 Governance Model iii Strategic Decision- Making Model for the City of Saint 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 The system being proposed for the City of Saint John is based on a Benefits of Council - Policy Council — Policy Committee structure. The complete Strategic Committee Form of Governance Decision- Making Model is illustrated in Appendix A. Focuses effort on policy issues In this form of governance, Council establishes a limited number of rather than on matters of administrative detail specific to standing committees that are responsible for developing, reviewing, individual departments; reinforcing and interpreting policy and evaluating the performance of those the governance role of Council. policies once they have been implemented. These policies will guide Council's decision - making in translating the Community's Creates a more meaningful role vision into a reality. Each Standing Policy Committee (SPC) for Councillors; allowing them to recommends policy to Council, who in turn makes the final decision. exercise leadership in their field of expertise or interest in developing Initially, several basic principles of good governance were used in policy that will have a positive the development of the proposed model. More detail on these impact in the community. principles can be found in Table 1 on the following page. The Creates a more effective decision - principles of good governance are important as they serve as touch making process through the stones to guide decision- making. The principles presented are well alignment of policy development established and have stood the test of time. A committee structure with planned community outcomes that satisfies these principles will not only enable, but will also that are designed to help the support good governance for the citizens of our community. community achieve its vision. Principles of Good Governance Improves the effectiveness and efficiency of service delivery • Democratic • Accessible and Representative through better coordination of • Strategic Vision • Responsive and Effective resources by aligning services • Accountable • Efficient with planned community • Transparency • Equity • Rule of Law outcomes; ensuring citizens realize value for money. in addition to these basic principles of good governance, two other Improves Council's decisions with better analysis and understanding key considerations were used in the development of the model. of policy issues through a balanced division of workload and • Council's role as a decision- making body is one that is focused on more informal, coordinated, and policy and setting the strategic direction for the community collaborative debate on issues. versus the Administration's responsibility of implementing policy and delivering the services required to achieve strategic goals. Provides a forum for better public participation in strategic decision- • Making the necessary connections between the community's making; improving responsiveness vision and goals, Council's strategic outcomes, and the day -to- to the needs and concerns of day operations of the City as illustrated in the Strategic Reference citizens. Model (Appendix l3) developed for the City of Saint John to guide Improves accountability and the Vision 2015 process. transparency with greater public participation in the decision - The anticipated benefits or outcomes from the implementation of the making process. Sets a common proposed model are set out in the right hand column. purpose and defines performance responsibilities. Saint John Governance Model Strategic Decision - Making Model for the City of Saint John Table 1: Five Principles of Good Governance 13, 2007 Principles of Context',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 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. The achievement of the effectiveness, efficiency, accountability, and transparency goals start with a vision for the community. 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. Community visions are develoaed 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. Supporting the Vision 2015 process is the Strategic Reference Model adapted for the City of Saint John. The expanded model can be found in Appendix B. I J. Graham, B. Amos, T. Plumptre, Principles of Good Governance for the 21a Century, Institute on Governance, August 2003. Page 3. z McGregor, Dawson and McGregor, Democratic Government in Canada, University of Toronto Press, 1971. Pages 3-12. 3 K. Antoft, J. Novak, Grass Roots Democracy, Local Govemment in the Maritimes, Henson College, Dalhousie University, Halifax, 1988. Page 155 -157, Saint John Governance Model 2 es Strategic Decision - Making Model for the City of Saint John August 13, 2007 A community owned and developed vision is a true reflection Various stakeholders have a of the chinos that matter to Saint Johners. leadership role in defining and achieving the community's vision and goals. The proposed model is very much anchored in he achievement �- — > Community of a clear and common vision for the community, Council's role as a decision- making body is to focus on policy > Council matters and setting the strategic direction that will guide the Administration Standing and the community in the achievement of its vision Committees and related goals. It is Council's responsibility to identify its priorities for the community based on the vision and goals developed by the Administration 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 chanoe in the community based on the public's needs. Standing 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. Policy may be defined as a governing principle, plan, or course of Legislative bodies are most effective action that guides or influences future decisions .4 and successful when they focus on strategic functions that guide the Council makes public policy decisions; others perform the future of their communities. administrative task of implementing those policies. Table 2: Examples of policy versus administrative responsibilities. 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 Administration 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 strategic direction. Delivery of services in support of Council's strategic direction and in support of vision achievement. Adopt policy allowing or prohibiting off -street parking. Enforce the terms of the parking policy. 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 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 policy 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. Figure 1: Political organization of the Strategic Decision Making Model 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 (CAO) 1 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 govemment, 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 s. 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. The success of a Council - Policy Committee system also requires a mutual respect for the roles of all stakeholders that participate in the strategic decision- making process. Community (Citizens) The community's role in the proposed system is to ensure that Effective decision making by Council Council is effective in its decision - making in terms of addressing the requires input from the community. needs of the public. Citizens must have an opportunity to actively Citizens must have a voice in the participate in the policy process and to raise matters of concern process so that their needs are within the community. adequately expressed, ensuring that elected officials have the ability to Citizens are responsible for: represent the best interests of the • electing the Mayor and Councillors to public office; entire community. • 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 The Municipalities Act makes a clear development. Setting a strategic direction for the community and distinction between the policy making supporting the achievement of desired outcomes required to realize role of Council and the administrative a vision for Saint John are its priorities. Council is fully accountable role of staff [Section 36(2. 1)], °A to the citizens of the City of Saint John for the results of its decisions Councillor of a municipality shall .... and actions. c) Participate in developing and evaluating the policies and programs Council's responsibilities include: of the municipality. • making final decisions on all matters related to policy; approving new and/or amending by -laws; and adopting operating and Council's role as a final decision - capital budgets; making body is based on the fact that • considering the welfare and interests of the entire municipality; as the elected body, rt alone has the • identifying strategic directions in terms of priorities for the City of authority to make decisions, take Saint John designed to achieve the vision for the community; action, adopt polices, and enact by- • providing clear mandates for Standing Committees and clear laws put forward on behalf of the direction to the Administration; electorate as defined by the • delegating appropriate decision - making authority to Standing Municipalities Act [Sections 4(3), 9(9), Committees and the Administration; and 90.2(2.)). • monitoring the performance of Standing Committees and itself to ensure that the City's priorities and goals are being achieved; Saint John Govemance Model 5 Decision - Making Model for the City of Saint John • hiring and monitoring the performance of the CAO, and thereby the overall performance of the organization; • hiring and monitoring the performance 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) Perform 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 August 13, 2007 Statutory obligations as set out in the Municipalities Act define the govemance role for Councillors. An effective govemance 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 s: 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. Policy & 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 all 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-laws, and public hearings. Committee of the Whole allows for the consideration of matters in greater depth in a less formal environment Its role is to make recommendations to Council on the matters described above. Many complex policy issues requiring the attention of all Members of Council will be debated within the Committee system. Committee of the Whole provides a good mechanism to discuss most, if not all, 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 necessary to create a coordinating body to ensure that all service areas are collaboratively working towards a common vision for the community. The proposed mandate and responsibilities for the Policy & 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 s• Strategic Decision - Making Model for the City of Saint John August 13, 2047 • recommending appointments to Council; and • carrying out decision - making authority delegated to the Committee by Council. Standing Policy 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. Standing 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 Councillors as having a role to play in 'developing the policies and programs of the municipalitjr'' This mandate indicates a clear separation between policy and administration. The role and responsibilities of Standing Policy Committees in the proposed system reflect this separation of policy and administration. `Policy' will 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 m 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 CAD'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 CAO'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 CAD'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 1 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 u�re Council-Manager system requires a refinement of the roles and responsibilities for the CAO. 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 CAO are reflective of the statutory delineation of the 'policy' role of elected representatives and the 'administrative' role of staff. The CAO pursuant to the City Government Act 1938, has the "... control of and supervision over the heads of departments' and is responsible to Common Council for the efficient administration of these departments. The statute further provides that the CA Os role with respect to control and supervision does not extend to the Common Clerk or to the City Solicitor or to the Commissioner of Finance. Each of these positions reports directly to Council and the Common Clerk and City Solicitor are responsible for the control and supervision of employees within their departments. Saint John Governance Model 9 RH Strategic Decision - Making Model for the City of Saint John August 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 CAO. 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 CAO 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 CAO; • addressing all questions directed to them through the CAO during Standing Committee meetings; and • reporting through the CAO on the performance of their service responsibilities. Agencies, 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 responsibilities 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 10 102 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 performance 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. Each standing committee will operate and make recommendations to Council on policy within a specified mandate (jurisdiction). 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 recommendations). 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 Alignment: 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. 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 all committees. • Providing a supportive and collaborative working environment • Provide meaningful opportunities for public participation in the decision- making process. • Avoiding duplication of effort • Avoiding conflicting roles and responsibilities. • Avoiding the creation of decision - making silos. Saint John Governance Model 111 103 Strategic Decision - Making Model for the City of Saint John August 13, 2007 Sustainability Needs: A standing committee is created to contribute to each of the basic needs identified in the Earth Charter (EarthCAT) 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. 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 role to set the strategic direction for the community In a case where a Committee recommendation is fully supported by the Committee membership (5), the Mayor could potentially 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 'all' 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 12 104 Strategic Decision- Making Model for the City of Saint John August 13, 2007 Standing Policy Committees and the Mayor who is the Chair of the to ensure that there is coordination in Committee, policy creation across all areas of jurisidiction. Standing Policy Committee: Each Committee consists of five (5) Committee composition is designed Members of Council of which one Member is appointed the Chair. to balance the workload across all Members of Council and to ensure an adequate number of Members for quorum at Committee meetings. The Mayor appoints the Chair for each of the Standing Policy The Mayor provides leadership by Committees. ensuring each Committee aligns itself to achieve the community's vision. A Member of Council can only chair one Standing Policy Committee at any given time. Successful implementation of a new governance model requires strong A Member of Council cannot Chair the same Committee in two (2) Chairs to lead their respective consecutive rotations. Committees. The Vice -Chair for each Standing Committee is elected from Limitations on Chair appointments amongst the Members of the Committee. provide opportunities for a number of Members of Council to act as a Chair of a Committee. Members of Council make an `Expression of Interest' to the Allows Council as a whole to take a Committee of the Whole. leadership role in the operation of the governance system and balances the The Committee of the Whole recommends appointments to each of authority of the Mayor to appoint the the Standing Policy Committees. In determining these Chairs. appointments, the Mayor will have already made his/her Chair appointments. Standing Policy Committee membership recommendations are approved by Council. Termination of Committee Member Appointments The success of any governance system is its ability to make effective Members of Standing Committees who fail to attend three and efficient decisions and the successive regular or special meetings, without being authorized to commitment of individual Members of do so by the Committee, will have their membership terminated. Council to making the system work. Saint John Governance Model 13 105 Strategic Decision- Making Model for the City of Saint John August 13, 2007 Reception of a written notice of regret by the Committee Member will When problems arise that impede the constitute authorization for absence at Committee meetings. system's ability to function and work as intended, there needs to be a The Chair can also make a recommendation to Council with respect mechanism in place to ensure to the termination of membership for any Committee Members: Committee membership is appropriate. • that are not working within the mandate defined for the Committee; or Successful operation of the system • neglecting or refusing to give proper attention to matters before requires stability; therefore, the Committee. termination of Chair or committee appointments should be a rare Council will appoint a replacement for the Committee position left occasion. vacant by the termination of membership. Termination of Chair Appointments 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. 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 (i.e., June) following the same procedures identified for Committee appointments. 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. Saint John Governance Model U N Decision- Making Model for the City of Saint John ust 13.2007 Ability, interest, availability and continuity will be key considerations Keeping two (2) Members on the SPC in the Committee Rotations provides for continuity in decision - making, especially for complex issues that span the two year rotation. i awes rossiDie conngurauon or committee memoers A 1 2 3 4 5 AA 1 5 7 8 9 B 6 7 S 9 10 BIB'` 2 3 4 6 10 C 3 4 5 6 7 cc 1 3 7 9 10 D 1 2 8 9 40 DD 2 4 5 6 0 Saint John Governance Model 15 107 Strategic Decision - Making Model for the City of Saint John August 13, 2007 SECTION Il; Decision - Making and Administrative Processes 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 information on specific processes will be contained under their own heading. Figure 2 shows a graphical representation of the strategic decision- making process. Members of Council Citizens City Manager Departments Head(s) ABCs Other Stakeholders ---------------------------------------- (Council committee]ABC/ public l other ( back lo) ;stakeholders with information ! referral! decisions i Common Clerk {refers recommendations appropriately according to mandate and decision- making authority} r ---- - - - - -- (staff through the city Manager) Figure 2: Strategic decision - making process. Access to the Decision - Making Process Committee of the Whole Policy & Priorities Committee Standing Policy Committee The access point to the decision- making process is a Standing Committee. 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 Council or a Standing Committee are submitted in writing to the Clerk. The Clerk refers each matter to Council or the appropriate Standing Committee agenda for the next Common Council (makes final decisions andlor amends council committee 1 Administrative recommendations } 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. Saint John Governance Model 16 m Strategic Decision - Making Model for the City of Saint John August 13, 2007 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 (i.e., community organizations). There may be instances when the Administration through the CAO 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 CAO at a regular scheduled Council or 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 CAO, prepares recommendations and information reports from the Administration and provides policy related advice for Standing Committees to consider. • The CAO 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 CAO. With respect to the City's agencies, 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 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 Govemance Model 17 E Strategic Decision- Making Model for the City of Sainl John August 13, 2007 the City's agencies, boards or commissions. Consideration of Matters at Standing Committee Meetings 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 all 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 CAO 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 behalf 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 support 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 - allowing 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 an Strategic Decision- Making Model for the City of Saint 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 Meetings 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 CAO 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 usually indicates that the matter should be referred back to the Committee for a more in -depth review. Saint John Governance Model 19 U Strategic Decision- Making Model for the City of Saint John than have been previously presented in the Standing Committee Report. Council under its decision - making authority can: • adopt Standing Committee and CAO 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 CAO 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 Cleric's office to the CAO, municipal officers, City's agencies, boards, and commissions; citizens; and other stakeholders. Regular Scheduled Meetings 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. August93,2007 Council's decision- making role and the deliberative role of the respective Committees must be respected. Manages meeting commitments of Members of Council; considering Standing Committees are focused on policy development. Provides for coordination of schedules for Council and Standing Committee meetings. Saint John Govemance Model 20 112 Strategic Decision- Making Model for the City of Saint John August 13, 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. Additional meetings may be required Meeting Times & Locations to deal with time sensitive or emergency issues that arise within With the exception of Committee of the Whole meetings, Standing the mandate of a particular Standing Committee meetings are held in the Council Chambers in City Hall, Committee. between 11:30 AM and 1:30 PM, unless otherwise decided by the Committee prior to the start of the meeting. Proposed meeting times coincide Committee of the Whole meetings are scheduled by the Clerk and with the majority of lunch hours meeting times are advertised with the distribution of the agenda. supporting the availability of Members of Council and the public. Scheduled times will be strictly adhered to for all Standing Committee meetings, unless time extensions are approved by Working within time constraints majority vote of the Committee. fosters efficient debate of policy issues. 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, CAO, 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 distributed 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 all 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 21 113 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. i aoie 4: z)ummary or aammistrauve aeaannes roi Agenda Submissions - All meetings Wednesday prior to_meeting __ ___ Agenda Meeting _____Noon-__._ - SPC agendas _ _ Friday prior to meeting 10.00 AM Agenda Distribution - SPC meetings Friday prior to meeting 4:30 PM - CC 1 COW I PP meetings Thursday prior to meeting 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. 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. saintjohn.ca) accordingly: • Regular Meetings: three (3) days prior to the date of the meeting. The proposed scheduled will provide additional time for Councillors to review and consider meeting agenda items. Prompt completion of Committee reports and minutes ensures that recommendations to Council are addressed in a timely fashion. Consistent with the City of Saint John's Procedural By -law. Saint John Governance Model 22 114 DecisiornMakina Model for the City of Saint John • 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. 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 iii. 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 permitted.* • Motions are passed with a majority vote of the Committee August 13, 2007 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 helps to eliminate duplication of debate at Council meetings. Saint John Governance Model 23 115 Strategic Decision - Making Model for the City of Saint John 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 negative.* 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 agenda item must submit a written request to the Clerk outlining the content 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. ust 13, 2007 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 a Strategic Decision- Making Model for the City of Saint John Meeting Agenda 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 Committee's 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 received by Members of Council dealing with administrative or operational items is referred to the Clerk. For correspondence requiring a response, the Clerk refers the correspondence to the GAO 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. August 13, 2007 Presentation and /or debate of day to day administrative matters before Council or 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 25 117 Strategic Decision - Making Model for the City of Saint John August 13, 2007 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 CAO or to employees of the City, 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 performance. 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 clearty 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 priorities set by Council in order to achieve a common vision for Saint John. The procedure currently used to make ABC appointments will continue to be used in the new system. Saint John Governance Model 26 a Strategic Decision- Making Model for the City of Saint John 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 Committees are created by Council to review and develop recommendations for special purposes (e.g., ward systems). The recommendations resulting from an ad hoc committee generally affect broad aspects of municipal govemment 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 Progress 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. ust 13, 2007 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 Governance Model 27 a 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 2g 120 Strategic Decision- Making Model for the City of Saint John August 13, 2007 SECTION III: Practicalities of Implementation In addition to Committee of the Whole, Members of Council are Balances Committee workload across all required to participate on two (2) Standing Policy Committees. Members of Council. Appointed Chairs of Standing Policy Committees are required to Ensures collaboration and coordination participate on the Policy & Priorities Committee. of policy development across each Standing Committee. Under the proposed Council — Standing Policy Committee model In addition to regular Council and form of governance the number of meetings that Members of Committee of the Whole meetings, Council will be required to attend will increase. Members of Council will be required to attend at least two Standing Committee The overall time commitment of Members of Council for attendance meetings and possibly a third meeting if at Council and committee meetings will depend largely on the the Member is a Chair of a committee scheduling of meetings (i.e., once or twice a month for committee (i.e., Policy & Priorities Committee) each meetings); effective time management of both Council and month. committee meetings; and the possibility of reducing future requirements for appointments of Members of Council to agencies, Disciplined management of Council boards, and commissions (ABCs). meetings and a mutual respect for governance roles should not result in unnecessary debate of Committee recommendations, theoretically 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 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 29 121 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 hour; due to work commitments. 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 reportsirecommendabons 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. 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. Although attending addriional meetings would increase time commitments, it would ensure that Council makes better, more informed decisions. This would be particularly helpful for complex or sensitive matters. Saint John Governance Model 30 122 Strategic Decision- Making Model for the City of Saint John August 13. 2007 Education /Orientation 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 Education and orientation about the Council and the Administration will need to take adequate time to proposed standing committee system will understand and become familiar with the new system. Even with a be required as part of the transition proper orientation and practical experience, it will take a number of process. 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 Interpretation 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. Respecting Governance Roles and Outcomes Many municipalities report that achieving Regardless of the type of system designed to support Council's this level of respect is at times d#ftculf; decision - making process, the success of the system largely however, rt is vital to ensuring a more depends on the understanding and commitment of those that have meaningful role for the elected officials in a responsibility for making the system work -- Members of Council working on behalf of their constituents and and the Administration. realizing the community vision. Saint John Governance Model 31 123 Strategic Decision - Making Model for the City of Saint John August 13, 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. 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 (16) 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 govemance responsibilities. Regular review of system operations and recommendations for improvement must be made at scheduled intervals (e.g., at the half way mark of each term of Council). These improvements would address structure and process issues. 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 pdorities. However, interim changes many also need to considered. 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 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. Saint John Governance Model 32 124 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 Councillors to participate in some ABCs given their roles as a Councillor and Standing Committee Member. The implementation of a new governance model will require additional funding; both initially and in the long term. Administrative Staffing 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. Planning 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). Saint John Governance Model 33 125 Decision- Making Model for the City of Sainl John Meeting 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 1 broadcasting requirements. Renovations to an existing room or rooms will be required to adequately address these issues. The implementation of a new governance model will require changes in the City of Saint John's Procedural By -Laws. 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 126 st 13, 2007 Strategic Decision-Making Model tar the City of Saint John August 13, 2007 SECTION IV: Conclusion The Council - Policy Committee based governance 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 governance 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 concems, 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 35 127 Strategic Decision - Making Model for the City of Saint John August t3, 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 Government in the Marilimes, 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: h pL/ .citv.barrie,on.cal,. Last Visited 1011212006. 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: bjjp.-ftww.cal ar.ca. Last Visited 1011712006. 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: hH2./7www.trederfctonca. Last visited 10141912006. City of Guelph, 2006. A By -Law to provide rules for goveming 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.11www.hami Ito ncatch org/howcityworks.thm and hft :d .h hamillon.calm hamillonlCit andGovernrrerUCit De artmentslCor orateServiceslClerksl... Last Visited 101612006. 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. Last Revised Unknown. URL hfi :l .citvofkin ston,calcit halllcommitt sislandin .aso. Lasi Visited 101612006. City of London, 2004. Council Procedure By -Law, City of London. City of London. Last Revised Unknown. URLs: h pw1 .london.ca/Councllstandcom.hlm. Last Visited 812312006. City of North Bay, 2003. Procedural By -Law, No. 2003139, City of North Bay. City of North Bay. Last Revised 2007. URL; tkt2:!_____ec tty,nodh- bay.on.calcitvhall! uncill. Last Visited 81312007. City of Ottawa, 2003. By -Law No.2003 -XX, City of Ottawa. City of Ottawa. Last Revised Unknown. URL: http:l ,oltawa.catcity hall/mayor councilFndex en.html. Last Visited 8/2312006. 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 Coquillam, City of Port Coquitlam. Last Revised Unknown. URL: htt :1 .poricoguitlam,ca/Qlt Hall /. Last Visited 10/1212006. Saint John Governance Model 36 128 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; Wt1ipa,; %,,,, cuns.cili .riichmond.bc.aa. Last Visited 101612006. 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: hit itr.l ..saskatoori.caloM„ /(gerk� o c l tancill, Last Visited 9128/2006. City of St. John's, 1992. By -Law No1273 Rules of Procedure, City of St. John's. City of Strafford, 2002. Procedural By -Law 216 -2002, City of Strafford. City of Stratford, Last Revised Unknown. URL: htt °11 .ci .stratford.on.calsite sIe stocft hallfrouncil.as . Last visited 101612006. City of Winnipeg, 2005. City of Winnipeg City Organization By -Law No. 7100197, City of Winnipeg. City of Winnipeg, 2004. City of Winnipeg Procedure By -Law No. 5400190, City of Winnipeg. City of Toronto, 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 of Toronto. Cuff, G.B., 2006. The Use and Abuse of Committees (Part'! ), 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. Governance 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, T., 2003. Principles for Good Governance in the 219 Century Policy Brief No., 15, Institute on Governance. Hallsmith, G., Layke, C., ,Everett, M., 2005. Taking Action for Suslainability: The EarthCAT 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 Government 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 37 129 Strategic Decision- Making Model for the City of Saint John: Appendix A Draft Version: August 3, 2007 J LLU Y. r Y, V W LU fl� Lu ' :A ~ c ran, 0 E 0 Y C3 11 v0 C CD 7 •E: I 7; ggb C} C7C Q yy��yy Y `! 1! 4rL Eu Eu .. Y pq r Y Li O Gt9 'b 777771 I �= p 1 U tl Ya N N Y ( fd) � L6 n I il? +79 � E i [n CL O ew CO co O U cc CIS U) Q c C, ry 43 0 N iq .g L 9 rr a C UJ �] W LZ m: --i ; (D r� i d7 4° 4a m O o U) + cd N cn LU In U U 0 O dl � j d Saint John Govemance Model 38 0 Strategic Decision - Making Model for the City of Saint John: Appendix B Draft Version; August 3, 2007 sa w k 4 ✓ t r i d ;i r � � � ✓ t ✓ rr � W T f ✓ Y �'�A lY d ✓/ ly V ,✓Y r r �� f �( I ` ✓ ✓r;, r s � r✓ r r � �fu ✓ ' ✓ Jr r i i r P � r ✓ �r r✓ ✓ r %' '" aG w �✓'� E �� r a wj r � �. s r PVC wy ✓ � r i f /y i W✓ �r "' �✓��. , � i � � = rw'�s, r ,S h�. � 1� ' �h 4,, t poi 1 �� ^, 4�^,�,.✓e ? � �r.. "�� ;� ✓ fit„ Gs <, � fir'. ;✓r �;. J � 6�✓i w' Sri .. �w 0 � a.ti a� ✓. s ✓ a� 4— �, �✓ X �" �r �✓ ✓ �'" r r �i� ✓ l� ✓, ✓� ✓° wh iC �✓ ✓�yUytrr ✓ �l�r wr r�✓i �. ✓ Yh ° Qpl rW�y „. �,� r ✓✓ i✓ 7 �t v rr� i F "�� ✓r ✓�r ✓ i ✓✓rr ��r r r ✓,ha wigs �w i y✓ w �✓ d 7�r ,^ q�� W r U ✓rdp y.� ✓ wow v� � J✓ Vf �,ly r �. ,C i fq � ✓ i ir ✓ ✓ � 7f ✓rPv aY �^ ,. � ✓ �� rr / ry��i „�y�7 ✓F hri Ja��H '�` tJ✓ o �7 ✓, 4r r �✓,� �, x'" ��" 1✓` r i fJiyrr � ,� r� r�f�q w'0 � ✓ f � x �; � r a� rip ✓ ✓ } ✓ ��d ✓,rd✓ J r: � ✓d ✓✓ r7y� � r ✓ r� ,✓ a s r� �t � ✓ r� y u? r ✓ � �i � ✓� +r1tl ✓f r ✓ �'' r4 ✓ '✓��.� fi ✓�:�� i�f✓, at 3 ra r "` it �l i ✓i ✓� ✓ i r" r � irx r ✓�v ✓ r �.✓ /rA �� '" /� � tit � ^�'w w �v'" r ✓ ��r ti t. � �`r ✓s �a�s,� ✓ y� u�� "r'��rr'dv�"� � C r � a ifr I�' t � ✓I✓ti4r;a ✓s�m d� a✓�r�( ro it � ✓;6� 1 ✓ ✓r v3rx ;,�w ✓„� ✓✓✓y) rk✓ �� r r✓ xr�r�; w�✓ Saint John Governance Model 39 Strategic Decision - Making Model for the 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) CC Common Council Every second Monday COW - December3l j ani uar 1 % j �� /// / /// % t' 4 common -_.------------- SPC1 /1 � /%/ /, •------- - - - - -- ----- - - - - -- - First Wednesday of the Month Coun dl Standing Policy Committee 2 „ ,, G, ,ll , o SPC3 Standing Policy Committee 3 Third Wednesday of the Month AgendaSutrrniidrr Agenda . t&ng SPC2 Agenda Distribution COW Forth Wednesday of the Month CM 2: A Ol,%1rlhkdion C2 7 li, ig f1 :Srtrdlrtg Pohl. ts�Who� Agenda Submission Agenda Moeltng SPC3 Agenda Distribution CC SPC Qtrbtdtrli&t �C3 14 1d ,mm . 17 . IS SIznding Policy Common Con.'I tlee 3 Council Aganda Submission CSI t' PP SPCA i nr9rz Q�tribution COW I PP Agenda Meating SPC4 A ends CttUtsrar SPC1: 21 - 1 Came I ,mod " P panda �� Subn Cd Agenda Dibibution CC February I Common Court Agenda Submission Agenda Ik a ig SPC1 Agenda a Distribution C g OW w W I spc' l a I7a9gw islrits�rllan' 1'1 F/107� � %,i.i /�N/H " tc "W�l r> <rairi .. Aged S rmarATr Agenda Distribution CC Agenda to", ng SPC2 CC 1 SPC2 %i1m�drlbwttitot C 11 12 , 13 t4 1 Common Council Agenda Submission Agenda Distribution COW/ PP Agenda Me ing SPC3 COW I SPC3 ASe Nst0botta SPC3 X21 19 20 „ 21 22: 40' P 'A Standing Poiicy Committee 3 die tpttf� ° Agenda Submission Agenda iaaoir SPC4 Agenda Distribution CC ° g .. CCISPC4 A oidii �Pn ulko WC4 25 26 17 g'9 IUCh I tandmg, Policy Common Committee 4 Council Agenda Submission Agenda Distribution COW Agenda 1al J SPCi COW I SPC1 A ends t tr2uriinn SPG I CC Common Council Every second Monday COW - Committee of the Whole Alternate Mondays to CC - PP Policy & Priorities Committee Every second COW meeting - -_.------------- SPC1 ---------------- - Standing Policy Committee 1 •------- - - - - -- ----- - - - - -- - First Wednesday of the Month SPC2 Standing Policy Committee 2 - Second Wednesday of the Month SPC3 Standing Policy Committee 3 Third Wednesday of the Month SPC4 Standing Policy Committee 4 Forth Wednesday of the Month Agenda Submissions -All meetings Wednesday prior to meeting Noon Agenda Meeting - - - - - - - - - --- - -- --- - - ---- •- • - - - - -- - SPC agendas - - - -•- Friday prior to meet ng 10:00 AM --- Agenda Distribution -- - ------ --------------- - - - - � SPC meetings Friday prior to meeting 4:30 PM CC I COW I PP meetings ------------------------------------------ Thursday prior to meeting Report& Minutes SPC meetings Wednesday pdor to the next Noon - COW I PP meetings reasonable CC meeting Sainl John Governance Model 40 132 r rr �1 1g, 3 December 3, 2007 Deputy Mayor Hooton and Councillors Subject: Committee of the Whole Report The Citizens' Advisory Committee of the Vision 2015 Committee presented the Saint John Community Vision Statement at a Committee of the Whole meeting on November 28, 2007. At that meeting the Committee passed a resolution as follows: That the Committee accept the submitted Vision Statement in principle to be ratified at the December 3, 2007 regular meeting of Council. Recommendation: that Council adopt the following Saint John Community Vision Statement: CITY OF SAINT JOHN COMMUNITY VISION STATEMENT OUR SAINT JOHN OF THE FUTURE ,Our Saint John, Canada's first city, leads the nation as an example of a sustainable community. Our Saint John was born of the water. Like the tides we live by, we are responsive to the constant changes in our environment, economy, and society. Our Saint John is a livable city designed for people where everyone can feel at home. We are diverse in cultures, rich in arts, full of exciting entertainment and recreational activities. Our Saint John provides educational excellence and life long learning opportunities to help people reach their full potential. Our dynamic economy is built on creativity, innovation and entrepreneurial spirit. 600 SAINT 01iN P.0, Box 1971 Saint John, NB Canada (21- 41-1 1 wwwsaintjohn.ca I C.P. 1971 Salnt john, h!. -B. Canada 133 Our Saint John is a population of problem solvers where each individual and organization has a vital role to play. It is a place where leadership is based on transparency, integrity, and trust. Our Saint John is a place where we overcome our challenges and live our dreams. This is our Saint John. Since 1 v Norm McFarlane Mayor 134 April 28, 2008 His Worship Mayor Norman McFarlane And Members of Common Council Your Worship and Councillors: RE: Council Committees By-Law BACKGROUND As part of the Operational Review completed in 2005 a recommendation was made for Common Council to move to a Standing Committee governance structure. During 2006 and the early part of 2007 staff and the Vision 2015 Steering Committee completed a detailed review of the various governance structures utilized by Municipalities across the Country. In addition Common Council met with representatives from the City of Fredericton to learn about their experience with the committee system. In August of 2007 Common Council was presented with a detailed report entitled "Strategic Decision - Making Model - A Proposed New Governance Model for the City of Saint John ". Following two separate meetings where presentations and discussions were held regarding the material in this report staff were instructed to prepare a By -Law for implementation of the new committee system. The purpose of this report is to present a draft of the Council Committees By -Law. L3R11V__"_ Ul The attached By -Law would implement a Council— Policy Committee structure of governance for the City. 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. 135 The proposed model is very much anchored in the achievement of the common vision for our community. The attached diagram illustrates the City's Planning & Policy Framework. Work is currently underway on the development of an Integrated Community Sustainability Plan (ICSP) which will be one of the key guiding policy documents for the community and Council. 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 Policy 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. It is proposed that five Standing Policy Committees be established: The Coordinating Committee; Community Development Committee; Economic Development Committee; Infrastructure Committee and; Cultural Development Committee. The mandates for these Committees are drawn from and align with the Community Vision and Goals presented to Common Council in November of 2007. These mandates will be further reviewed as part of the development of the ICSP to ensure alignment of the policy making function. RECOMMENDATION: That Common Council consider I" and 2nd Reading of the attached By -Law respecting the establishment and operation of the Coordinating Committee and Standing Policy Committees and That 3rd Reading be considered by Common Council in conjunction with the completion of the Integrated Community Sustainability Plan. Respectfully submitted, Terry L. Totten F.C.A. City Manager 136 Title Section Definitions and Interpretation ........................ 1 Standing Policy Committees, Coordinating Committee ................ 2 Roles and Responsibilities of Standing Policy Committees ...........3 -4 Roles and Responsibilities of 17 -21 Coordinating Committee ........... ... 5 Operating and Capital Budgets ........ 6 Membership .............................. 7 Mayor Ex- Officio Member ............. 8 City Manager Ex- Officio Member ...................... 9 Quorum...... ............................... 11 Public Access to Meetings .............. 13 Appointment to Committees ............ 14 Chairperson and Vice - Chairperson ......................... 15 Administrative Powers and Duties .. ............................... 16 Mandate of Standing Policy Committees & Coordinating Committee ............. 17 -21 Revocation of Membership ........... 22 -25 Procedural Rules .......................... 26 Minutes. ............................... • •... 28 Schedule of Meetings ................... 29 Notice...... ............................... 30 1 137 BY -LAW NUMBER ' 1 • • 1 r �i � r i ARRETE A° WHEREAS the City of Saint John operates with a modified form of city manager government as described in the City Government Act 1936 (Chapter ( ?) S.N.B. 1936); and WHEREAS the Municipalities Act (Chapter M- 22, R.S.N.B. 1973) provides that a municipality "... may provide for, create, alter and abolish committees, ... and delegate administrative powers and duties to them " (s. 4(3)); and WHEREAS it is the purpose of this by -law to establish certain Standing Policy Committees as well as a Coordinating Committee of the Common Council of the City of Saint John, to define their respective roles and mandates and to prescribe as well certain matters respecting their composition, administration and procedure all in a manner consistent with the city manager form of government referred to in the first recital hereof; THEREFORE BE IT ENACTED by the Common Council of the City of Saint John under the authority vested in it by the Municipalities Act, R.S.N.B. 1973, c. M -22 and the Municipal Elections Act, R.S.N.B. 1973, c. M- 21.01, as follows: Definitions 1(1) In this By -Law, unless the context otherwise requires: a) Council means the Common Council of the City of Saint John; b) Councillor means a member of Council other than the Mayor; C) Goals are statements of what is to 138 be achieved for the future of Saint John; d) Mandate means broadly expressed statements that define the jurisdiction, purpose and authority of a Standing Policy Committee and which guide the formulating of its policy recommendations to Common Council; e) Member of Council means any person elected to a Council; f) Committee includes the Coordinating Committee and each Standing Policy Committee; g) Person means an individual, corporation, unincorporated organization and member of the civic administration as well as agencies, boards and commissions established by the City or the Provincial Legislature; h) Policy means a governing principle, plan or course of action that guides or influences future decisions; i) Ward means a ward established by a By -Law Relating to the Composition and Election of the Common Council, enacted by the Common Council of the City of Saint John on the S'h day of November, 2007; j) Calendar Year means a period of twelve (12) consecutive months beginning on January 15' and ending on December 3151. 1(2) The headings in this By -Law are for reference purposes only. Establishment of Committees 0 139 2(1) The following Standing Policy Committees are hereby established: a) Social Development Committee b) Economic Development Committee C) Infrastructure Committee d) Community Development Committee 2(2) The Coordinating Committee is hereby established. Roles and Responsibilities of Standing Policies Committees 3(1) The role of a Standing Policy Committee is that of policy advisor to Common Council. Policy is intended to support the achievement of the stated goals of the Saint John Community and within that context a Standing Policy Committee shall advise Common Council with respect to policy development, review and performance evaluation. Each Standing Policy Committee shall operate in a manner consistent with the relevant governance provisions of An Act to Provide for the Government of The City of Saint John, 1936, 1 Edward VIII, (1936), (City GovernmentAct). 3(2) The responsibilities of a Standing Policy Committee include: a) serving, subject to subsection (3) hereof and within its mandate, as a person's initial access point to the municipal decision making process with respect to matters of concern within the community; b) providing a form for substantial debate related to the development, review and performance evaluation of policy and strategic directions respecting topics lying within its mandate; C) providing a forum for open public participation and detailed discussion with citizens as part of 3 140 the City's decision making process; d) making policy recommendations to Common Council including the prioritization of policies with respect to topics lying within, its mandate; C) reviewing and evaluating the effectiveness of those policies adopted by Council and which deal with topics lying within the Committee's mandate; f) considering reports from members of the civic administration dealing with the implementation of policies adopted by Common Council and dealing with topics lying within the Committee's mandate; g) discharging such other administrative powers and duties as delegated by Council from time to time, consistent with the relevant provisions of the City Government Act; h) consulting with the City Manager or a municipal official designated by the City Manager for that purpose, prior to presenting Common Council with any policy advice; i) consulting with the Commissioner of Finance prior to presenting Common Council with any financial advice; j) consulting with the City Solicitor or a person employed in the City Solicitor's Department and designated by the City Solicitor for that purpose, prior to presenting Common Council with policy advice respecting a matter involving the City's legal liability, rights, obligations or authority. N 141 k) consulting with the Common Clerk or a person employed in the Common Clerk's office and designated by the Common Clerk for that purpose, prior to presenting Common Council with policy advice respecting procedures, governance or related matters. 3(3) All matters of a policy nature are to be considered first by the appropriate Standing Policy Committee as determined by their mandate except in the event that consideration by Common Council is in the opinion of the City Manager or his designate, urgent, in which case such matter shall be considered by Common Council as soon as reasonably possible. 3(4) When the City Manager, Commissioner of Finance, City Solicitor or a person designated by one of them has provided advice to a Standing Policy Committee, a copy thereof shall be provided by the Standing Policy Committee to Common Council at the time of a Standing Policy Committee's submitting any related policy recommendation. 4(1) A Standing Policy Committee may establish, make appointment to and commission one or more subcommittees to assist with the development of a Standing Policy Committee's recommendation to Common Council respecting a proposed or existing policy relating to a topic lying within the Standing Policy Committee's mandate. 4(2) A Standing Policy Committee must adopt Terms of Reference for each proposed subcommittee outlining the latter's purpose, authority and intended deliverables. 4(3) Subcommittees shall be comprised primarily of non - elected members although a member of Common Council may be appointed if a request for such appointment is made. 4(4) Members of subcommittees are not compensated for their service. 4(5) If at a date twelve (12) months following the date of its establishment a subcommittee has not 142 completed the work defined in its Terms of Reference then the Standing Policy Committee by which it was established must review the subcommittee's progress and make a recommendation to Council respecting the subcommittee's continued existence. 4(6) Subject to subsection 4(5) a subcommittee is deemed to be dissolved upon the Standing Policy Committee by which it was created determining that the work defined in the relevant Terms of Reference has been completed. Roles and Responsibilities of Coordinating Committee 5 The role of the Coordinating Committee is to ensure collaboration and consistency in decision making across all Standing Policy Committee mandates. Committee of the Whole Operating and Capital Budgets 6 The Committee of the Whole of Common Council shall in addition to its ongoing deliberative and advisory role to Common Council be responsible for directing the development of the operating and capital budgets for the City and utilities. In discharging that responsibility the Committee of the Whole has the following responsibilities: a) providing direction to the civic administration through the City Manager with budget guidelines and considerations; b) considering the recommendation of the City Manager respecting proposed operating and capital budgets; C) considering recommendations from the Coordinating Committee and from Standing Policy Committees respecting long term strategic planning; 143 d) receiving submissions from interested persons as deemed appropriate by the Committee of the Whole; e) making recommendation to Council with respect to the proposed operating and capital budgets. Membership 7(1) Each Standing Policy Committee shall be comprised of five (5) Councillors with at least one (1) member from each Ward. 7(2) Each Councillor shall be appointed to, and subject to Sections 18, 19 and 20 hereof, shall at all times be a member of two (2) Standing Policy Committees. 7(3) Each Councillor shall be appointed to not fewer than three (3) Standing Policy Committees during a Council's term of office. 7(4) The Coordinating Committee shall be comprised of the Mayor and the Chairperson of each Standing Policy Committee, The Mayor shall be the Chair of this Committee. 8 The Mayor is an ex- officio member of each Standing Policy Committee and may participate in debate at meetings thereof, however, at such meetings may not move nor vote upon a motion. 9 The City Manager is an ex- officio non - voting member of each Standing Policy Committee and of the Coordinating Committee. 10 Any Councillor may attend any meeting of any Standing Policy Committee and participate in debate but may not move or second a motion nor vote upon a motion. Quorum 11(1) A quorum for a Standing Policy Committee 7 144 or for the Coordinating Committee is a majority of the members thereof respectively. 12 If neither the Chairperson nor Vice - Chairperson is present at a meeting of a Standing Policy Committee or the Coordinating Committee then the Committee must elect a Chairperson from amongst its members present at that meeting. Public Access 13 Meetings of a Standing Policy Committee or of the Coordinating Committee shall be open to the public in accordance with the relevant provisions of the Municipalities Act unless the public is excluded therefrom pursuant to the applicable provisions of that legislation. �, �� = 14(1) Following each quadrennial municipal election Council shall: a) on the recommendation of the Committee of the Whole of Council, appoint two (2) Councillors elected from different Wards to each Standing Policy Committee for a term ending with the expiration of the Council's term of office; b) on the recommendation of the Mayor appoint a Councillor to each Standing Policy Committee for a term ending on June 30th of the third calendar year of the Council's term of office. Each such Councillor shall be the Chair of the Standing Policy Committee to which he/she has been appointed; C) on the recommendation of the Committee of the Whole of Council and subject to the provisions of subsection 7(1) hereof appoint two (2) Councillors 145 14 (2) elected from different Wards to each Standing Policy Committee for a term ending on June 30th of the third calendar year of the Council's term of office. a) Council shall on the recommendation of the Mayor appoint a Councillor to each Standing Policy Committee for a term commencing July 1st of the third calendar year of the Council's term of office and ending with the expiration thereof. Each such Councillor shall be the Chairperson of the Standing Policy Committee to which he/she has been appointed; b) Council shall on the recommendation of the Committee of the Whole of Council and subject to the provisions of subsection 7(1) hereof, appoint two (2) Councillors elected from different Wards to each Standing Policy Committee for a term commencing July 1st of the third calendar year of the Council's term of office for a term ending with the expiration thereof. 14 (3) A Councillor may not serve at any one time as Chairperson of more than one Standing Policy Committee. 15(1) Each Standing Policy Committee shall at its first meeting and thereafter at the first meeting following the appointment of a new Chairperson, so often as that shall happen, elect a Vice - Chairperson from amongst its members. 15 (2) If a Vice - Chairperson is not elected as stipulated in Subsection (1) hereof, then Council may appoint a Vice - Chairperson. 16 Each Standing Policy Committee and the Coordinating Committee shall exercise the roles and responsibilities delegated to them respectively in Sections 17 to 21 hereof. 0 146 Committee Mandates 17 Social Development Committee: To provide leadership and support to advance social development in the City. Specifically the Committee will advocate for and recommend policies and strategies that: 1. provide for a diverse and seamless array of educational opportunities that promote individual self- sufficiency, innovation, creativity and life -long learning. 2. promote a flexible and adaptive housing market that meets the range of needs within our community. 3. provide for a safe, livable community with vibrant neighbourhoods. 18 Economic Development Committee: To provide leadership and support to promote economic growth within the City and ensure that our natural environment is protected, preserved and enhanced. Specifically the Committee will advocate for and recommend policies and strategies that: i . recognize the inherent responsibility of every individual and organization to embrace a shared commitment to environmental stewardship. 2. promotes a diverse, vibrant, resilient, environmentally sound economy that actively supports wealth creation, innovation, entrepreneurship and individual economic well- being. 3. promotes a variety of economic and employment opportunities. 19 Infrastructure Committee: To provide leadership and support to promote the effective and efficient provision of public infrastructure that supports and enhances public health and the movement of people, goods and services throughout the city. Specifically the Committee will advocate for and 10 147 recommend policies and strategies that: 1. Enhance and protect the health of our citizens. 2. Promote an evolving array of convenient, comfortable, affordable and efficient modes of transportation. 3. Promote active transportation networks that connect the entire city. 20 Community Development Committee: To provide strategic leadership in the creation of a livable and culturally vibrant community where active lifestyles are promoted. Specifically the Committee will advocate for and recommend policies and strategies that: 1. Support active and healthy lifestyles through a diversity of waterfront access; parks and open spaces; sport and recreation facilities and programs; cultural and social venues and events and; public gathering places. 2. Promote the highest standards of quality in architecture, landscaping, infrastructure management and urban design. 3. Promote our natural and built heritage as a key component in developing new and renewed places to live, work, play and learn. 21 Coordinating Committee: To provide leadership and support by ensuring collaboration and consistency of decision - making across all Standing Policy Committees. Specifically the Committee will advocate for and recommend policies and strategies that: 1. foster civic engagement and pride through responsible, cooperative, inclusive and fiscally responsible government that is accountable for achieving results. 2. support a leadership role for the City with other local, provincial and national levels of government to 11 148 address common challenges and opportunities for our community. 3. support the administration in efforts to recruit and retain the necessary human resources to meet the City's service level standards. 4. 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 operation; human resources and labour relations; and other administrative policy functions related to the operations of the Corporation of the City of Saint John; 5. recommending appointments to Agencies, Boards and Commissions to Common Council; 6. discharging such other administrative powers and duties as delegated by Common Council from time to time, consistent with the relevant provisions of the City Government Act. 22(1) The Council shall revolve a Councillor's appointment to a Standing Policy Committee in the event of a Councillor's having missed three (3) successive meetings of the Standing Policy Committee without having obtained authorization for such absence. 22(2) The receipt by a Standing Policy Committee of a member's written advice that he/she will not be attending a Standing Policy Committee meeting, constitutes "authorization" for the purposes of Section 22(1) hereof. 22(3) Council shall as soon as reasonably possible appoint a Councillor to a Standing Policy Committee for the purpose of replacing a Councillor whose appointment to that Committee has been revoked pursuant to Section 22(1) hereof. 23(1) The Chair of a Standing Policy Committee may recommend to Council that it revoke the appointment of a Councillor to that Committee when the Chairperson is of the opinion that the Councillor in question has: 12 149 a) neglected or refused to operate within the Standing Policy Committee's mandate; or b) neglected or refused to give proper attention to matters before the Standing Policy Committee. 23(2) Council shall as soon as reasonably possible appoint a Councillor to a Standing Policy Committee for the purpose of replacing a Councillor whose appointment to that Standing Policy Committee has been revoked pursuant to Section 23(1) hereof or whose membership therein has ended by reason of death or resignation. 24(1) The Mayor may recommend that Council revoke the appointment of a Chairperson of a Standing Policy Committee when the Mayor is of the opinion that the Chairperson in question has: a) refused or neglected to call meetings of that Committee as required to discharge its duties; b) refused or neglected to conduct the business of the Committee in accordance with its decisions; C) refused or neglected to attend the Committee meetings; or d) neglected or refused to operate within the Standing Policy Committees mandate. 24(2) Council shall as soon as reasonably possible and on the recommendation of the Mayor, appoint a Councillor to a Standing Policy Committee and designate him the Chairperson thereof, for the purpose of replacing a Councillor whose appointment has been revoked following a recommendation pursuant to Subsection 24(1) hereof. 25 Each Councillor as soon as possible following election to Council may submit to the Committee of the Whole a written indication of the Standing Policy Committees upon which he/she would prefer to serve. Similar written submission may be made 13 150 prior to the appointments to Standing Policy Committees to be made as of July 1" of the third year of a Council's term of office. 26(1) Unless otherwise stated the following rules apply to Standing Policy Committees: a) motions need not be seconded; b) there is no limit to the number of times a member may speak to a question; C) informal discussion of a subject is permitted when no motion has been made; and d) the Chairperson may make motions, participate in debate and vote on all motions without leaving the Chair. 26(2) Unless specific rules for a Standing Policy Committee procedures exist, Standing Policy procedures must follow the Procedural Rules applicable to the Committee of the Whole of Common Council as set out in the Common Council's Procedural By -Law enacted on the 3'd day of January, 2006. 27 Any matter which a person wishes to be considered by a Standing Policy Committee must be submitted in writing to the Common Clerk who will in consultation with the Chair of the appropriate Committee refer the matter to the Committee's agenda. uiTii'iliT= 28(1) Minutes must be prepared for all Standing Policy Committee meetings as well as for meetings of the Coordinating Committee. Such minutes will include: a) all decisions and recommendations; b) the names of the Committee 14 151 members present at and absent from the meeting; C) any conflicts declared pursuant to the provisions of the Municipalities Act or otherwise; and d) the signatures of the Chair and Recording Secretary. 28(2) Minutes must be retained by the Common Clerk in a safe manner and must be made available upon request to the public unless the meeting was closed to the public pursuant to the relevant provisions of the Municipalities Act. 28(3) The Minutes of each Standing Policy Committee meeting and of each Coordinating Committee Meeting must be circulated prior to or at the meeting at which they are to be adopted: a) if there are errors or omissions, the Committee must pass a motion to amend the Minutes and adopt the Minutes as amended; or b) if there are no error or omissions adopt the Minutes as circulated. 28(4) The approved minutes of each Standing Committee meeting will be submitted as an information item to the next regularly scheduled meeting of Common Council. 29(1) Unless otherwise directed by the Committee: "Social Development Committee" shall hold its regular meetings on the first Wednesday of each month; "Economic Development Committee" shall hold its regular meetings on the second Wednesday of each month; "Infrastructure Committee" shall hold its regular meetings on the third Wednesday of each month; 15 152 "Community Development Committee" shall hold its regular meetings on the fourth Wednesday of each month; "The Coordinating Committee" shall hold its regular meetings on the Monday of every second regularly scheduled Committee of the Whole Meeting. 29(2) Unless otherwise determined by the Committee meetings shall be held between 11:30 a.m. and 1:30 p.m. in the Council Chambers, City Hall. 29(3) The Chair of a Standing Policy Committee or the Coordinating Committee may call a meeting of the Committee at any time and must do so if a majority of Committee members so request in writing including a statement of the purpose of the meeting. 30(1) Notice of a meeting of a Standing Policy Committee or of the Coordinating Committee which is not contained in an annual schedule thereof adopted by the respective Committee, must be given in accordance with subsection (2) hereof. 30(2) The Notice referred to in subsection (1) hereof must: a) issue a minimum of 24 hours prior to the meeting date; b) be in writing and specify the time, date, location and purpose of the meeting; C) be posted on the City's website; d) be delivered or electronically transmitted to each Councillor and to the Mayor and the City Manager; C) be available in printed format in the office of the Common Clerk during regular business hours; and 16 153 f) provide any other notification as requested by the Committee. IN WITNESS WHEREOF the City of Saint John has caused the Common Seal of the said City to be affixed to this by-law the day of A.D. 2008 and signed by: EN FOI DE QUOI, The City of Saint John a fait apposer son sceau communal sur le pr6sent arr8t6 le 2008 avec les signatures suivantes : TABLE OF CONTENTS M 154 Premi6re lecture -. Deuxi6me lecture: Troisi6me lecture :