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Report on the Recommendation to Lethbridge City Council That the City's Real

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Report on the Recommendation to Lethbridge City Council That the City's Real Report on the Recommendation to Lethbridge City Council that the City’s Real Estate and Land Development Department become a Registered Brokerage April 5, 2014 Paul Emanuelli, J.D. Jennifer Marston, J.D. Procurement Law Office * * The Procurement Law Office provides public institutions across all sectors of government in Canada with specialized services in public sector procurement law, including institutional good governance re-­‐ views and opinions. The firm ected was sel as the 2013 Canadian Public Procurement Law Firm of the Year by Global Law Experts, and received the Corporate INTL 2012 Global Award for Public Procurement Law Firm of the Year in Canada. General Counsel and Managing Director ed Paul Emanuelli was rank by Who’s Who Legal as one of the top ten public procurement lawyers in the world and his textbook Government Procurement (3rd ed., Lexis Nexis, 2013) has been cited by the courts as an authority on the subject of Canadian public sector bidding r and tende ing law. Table of Contents Part 1: Executive Summary .......................................................................................... 3 1. Overview ......................................................................................................................... 3 2. Summary of Conclusions .................................................................................................. 3 Part 2: Background ...................................................................................................... 6 1. Background and Purpose of this Report ........................................................................... 6 2. The City and its Governance Structure ............................................................................. 6 3. Mandate of the City and the Real Estate and Land Development Department ................. 7 4. Laws and Policies Governing the Acquisition and Sale of Land.......................................... 8 Provincial and Municipal Laws and Bylaws ............................................................................. 8 Municipal Policies and Related Approval Procedures ............................................................ 8 Ethical Codes of Conduct and Conflict of Interest Safeguards ............................................... 9 5. The Regulation of Brokerages in Alberta ........................................................................ 10 6. Representation by Brokers and Brokerages.................................................................... 14 Types of Representation ....................................................................................................... 14 Commissions ......................................................................................................................... 15 7. How the City Buys and Sells Land ................................................................................... 16 Acquisitions .......................................................................................................................... 16 Sales ...................................................................................................................................... 16 Appraisals ............................................................................................................................. 18 8. History of Sales and Acquisitions by the City .................................................................. 18 9. Practices of Comparator Cities ....................................................................................... 19 Part 3: Overview of Governance Standards ................................................................ 20 1. Bellamy Standards for Municipal Governance ................................................................ 21 2. Trade Treaty Governance Standards .............................................................................. 21 3. Statutory and Common Law Governance Standards....................................................... 22 A. General Implied Fiduciary Duty to Act in the Public Interest: The Bowes Principle ......... 22 B. Common Law Oversight by Courts ................................................................................... 24 C. Enforcement of Statutory Frameworks ............................................................................ 25 Part 4: Consideration of the Proposal ......................................................................... 28 1. Brokerage Would Increase Knowledge, Standards and Oversight at the City .................. 28 Summary of Submissions ...................................................................................................... 28 Consideration of Submissions ............................................................................................... 29 2. Brokerage Would Represent Better Value for Money in Transactions ............................ 31 Summary of Submissions ...................................................................................................... 31 Consideration of Submissions ............................................................................................... 32 3. Brokerage Would Reduce Conflicts of Interest and Promote Transparency .................... 33 Summary of Submissions ...................................................................................................... 33 Consideration of Submissions ............................................................................................... 34 Appendix A – Public Submission to City Council, dated December 9, 2013. Appendix B – “Brokerage would Bring Transparency”, Lethbridge Herald, February 19, 2014. Appendix C – Spreadsheets Detailing Acquisitions and Sales by City, 2009 – 2013. The Procurement Law Office 2 Part 1: Executive Summary 1. OVERVIEW The City of Lethbridge has been asked to consider a proposal to transform its Real Estate and Land Development Department into a licensed brokerage set up by a registered broker (the “Proposal”). The Proposal, presented by two members of the public, raises seventeen points that fall into three main categories of concern: • Increasing knowledge, standards and oversight at the City; • Obtaining better value for money for the City; and • Reducing conflicts of interest and promoting transparency. This report has been prepared for the City to assist with the assessment and evaluation of the opportunities and challenges posed by the Proposal, against the background of the specific statutory and regulatory framework within which the City and Depart-­‐ ment operate and the broader good governance standards that apply to the municipal sector in Canada, and with reference to the current practices of the Department. 2. SUMMARY OF C ONCLUSIONS The Real Estate and Land Development Department’s seven-­‐member team performs a broad range of functions within its land management and land development mandate. The purchase and sale of real estate is only one specific component of its work. The Department’s activities take place within a legal framework that includes provincial and local bylaws and policies, general municipal governance standards, treaty standards for public contracting, and statutory and common law standards for public contracting. Taxpayers and the general public have a legitimate expectation that public institutions will manage public resources and protect the public interest in accordance with high standards of diligence. These good governance standards have long been established as matter both of general public policy and formal legally enforceable duties. The report concludes that while the values promoted by the Proposal are important and are consistent with the City’s governance obligations, there is no basis to conclude that those values are not being met by the Department in its present form, or that the pro-­‐ posed transformation of the Department into a brokerage would further the promotion of those values in a meaningful way. Knowledge, Standards, and Oversight. Although the Proposal cites concerns about the standard of work performed by the Department, no specific issues justifying concern were raised by the Proposal. The oversight function that the Proposal suggests could be carried out by the Real Estate Council of Alberta (“RECA”) is not the proper function of RECA. RECA’s mandate is to govern professionals in the real estate industry by setting The Procurement Law Office 3 and enforcing standards of conduct that improve the industry and protect members of the public. The Department does not act as a real estate professional representing members of the public, but as a vendor and purchaser of real estate. Having the City opt into a regulatory regime that is ancillary to its function would add unnecessary adminis-­‐ trative and compliance duties and related costs. The City’s efforts would be better fo-­‐ cused on continuing to ensure ongoing compliance with its existing regulatory frame-­‐ work. While the Proposal suggests that an experienced broker could be retained to open the City brokerage, the volume of transactions undertaken by the City that would require – and as importantly, exercise – the skills of an experienced broker is low. Even if an expe-­‐ rienced broker were hired, it is likely that the broker’s skills would not be properly uti-­‐ lized in this function and would become outdated. To the extent that the City wishes to strengthen the Department’s dge knowle of real estate matters, that goal can be met through participation
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