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Council Composition and Ward Boundary Review

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Council Composition and Ward Boundary Review Council Composition and Ward Boundary Review City of Guelph ________________________ Phase 1 Report Watson & Associates Economists Ltd. 905-272-3600 October 14, 2020 [email protected] In association with: Dr. Robert J. Williams ICA Associates Inc. and Dr. David Siegel Table of Contents Page 1. Introduction ......................................................................................................... 1 1.1 Terms of Reference ................................................................................... 1 1.2 Municipal Representation in the City of Guelph ......................................... 2 1.3 Study Objectives ........................................................................................ 4 1.4 Project Structure and Timeline ................................................................... 5 1.5 Public Consultation .................................................................................... 6 1.6 Consideration for City Council ................................................................... 8 2. The Composition of City Council .................................................................... 10 2.1 Context .................................................................................................... 10 2.2 Stakeholder and Public Consultation ....................................................... 12 3. Ward System or At-Large System ................................................................... 15 3.1 Context .................................................................................................... 15 3.2 Stakeholder and Public Consultation ....................................................... 16 4. Ward Magnitude (the Number of Councillors per Ward) ............................... 20 4.1 Context .................................................................................................... 20 4.2 Stakeholder and Public Consultation ....................................................... 21 5. The Number of Wards ...................................................................................... 26 5.1 Context .................................................................................................... 26 6. The Role of Councillor: Part-Time or Full-Time? .......................................... 26 6.1 Context .................................................................................................... 26 6.2 Stakeholder and Public Consultation ....................................................... 27 7. Recommendations ........................................................................................... 33 8. Potential Next Step – A Ward Boundary Review ........................................... 36 Appendix A Public Consultation ............................................................................. A-1 Watson & Associates Economists Ltd. \\10.0.0.52\hdrive\Guelph\2020 CCESR\Deliverables\Final\Guelph Council Composition Ward Boundary Review - Phase 1 Report.docx Table of Contents (Cont’d) Page Appendix B Ward-Based Versus At-Large System Advantages and Disadvantages ................................................................................................ B-1 Appendix C Time Commitment to Council Activities ............................................ C-1 Appendix D Councillor Compensation ................................................................... D-1 Appendix E Media Coverage ....................................................................................E-1 Appendix F Engagement Site Tool – Questions and Answers ............................. F-1 Appendix G Survey Responses .............................................................................. G-1 Watson & Associates Economists Ltd. \\10.0.0.52\hdrive\Guelph\2020 CCESR\Deliverables\Final\Guelph Council Composition Ward Boundary Review - Phase 1 Report.docx 1. Introduction 1.1 Terms of Reference Watson & Associates Economists Ltd. (Watson), in conjunction with ICA Associates Inc. and Drs. David Siegel and Robert J. Williams, hereinafter referred to as the Consultant Team, was retained by the City of Guelph in January 2020 to conduct a comprehensive Council Composition and Ward Boundary Review. The study has been organized into two phases: • Phase 1 – Council Composition and Employment Status Review; and • Phase 2 – Ward Boundary Review. Phase 1, which is presented herein, includes a review of council composition and employment status. In the Ontario Municipal Act, 2001, section 217 council composition refers simply to the total number of councillors and the method of election (in wards or at-large) but in this study council composition also includes the number of councillors elected in each ward. Employment status refers to whether councillors should be part- time (as they have been in the past) or full-time. Once Council has made a decision on the recommendations resulting from Phase 1 of the review, the Consultant Team will undertake Phase 2 of the study. Phase 2 will encompass a comprehensive evaluation of the City’s ward boundaries and set out alternative ward boundary options to ensure effective and equitable electoral arrangements for the City of Guelph, based on the guiding principles found in the Terms of Reference for the study. Following the completion of Phase 1 and parallel to Phase 2, City staff will prepare a report for Council on voting systems and methods for the 2022 municipal election and, later, Councillor compensation (that is, the actual salary paid to Councillors) and staff support. These two topics do not form part of this study and will be assessed independently of this assignment. Watson & Associates Economists Ltd. PAGE 1 \\10.0.0.52\hdrive\Guelph\2020 CCESR\Deliverables\Final\Guelph Council Composition Ward Boundary Review - Phase 1 Report.docx 1.2 Municipal Representation in the City of Guelph Guelph Council is comprised of thirteen members, including the Mayor and twelve City Councillors, elected in six wards, as presented in Figure 1. Figure 1 Current Ward Map of Guelph Watson & Associates Economists Ltd. PAGE 2 \\10.0.0.52\hdrive\Guelph\2020 CCESR\Deliverables\Final\Guelph Council Composition Ward Boundary Review - Phase 1 Report.docx The current municipal electoral system has been in place, without significant modification, since 1990. At that time, the number of City Councillors (then called aldermen) was increased from 11 to 12 and a ward system was implemented. Each elector has two votes for councillor and the two candidates who receive the largest number of votes in a ward are elected for that ward. The principle of “one person, one vote” anticipates that the population in each ward would be roughly equal. There are other principles that enter into the drawing of ward boundaries (see Chapter 8), but population parity is a very important consideration. Figure 2 illustrates the populations in the six wards in Guelph’s current system based on the 2016 Census.1 Ward 6 has been growing rapidly since these boundaries were established in 2006, meaning that the imbalance in the number of electors per ward would be even greater in 2022 unless some change is made in the ward system. The population metrics presented in Figure 2 make it clear that the wards are at odds with the “one person, one vote” principle. At a minimum, the boundaries of the existing wards need to be changed to bring Guelph into alignment with this principle. Phase 2 of this project will therefore be a ward boundary review, a task which will be conducted to assess the extent to which the present wards constitute an effective and equitable system of representation and, where they do not, to propose alternatives. 1 These figures are for illustration only. The Census only partially captures post- secondary students. During the Ward Boundary Review (in Phase 2), more comprehensive data on the post-secondary student population will be collected and included in the design of new wards. Watson & Associates Economists Ltd. PAGE 3 \\10.0.0.52\hdrive\Guelph\2020 CCESR\Deliverables\Final\Guelph Council Composition Ward Boundary Review - Phase 1 Report.docx Figure 2 City of Guelph Population per Ward – 2016 1.3 Study Objectives The primary purpose of Phase 1 of the study is to prepare Guelph City Council to make decisions with respect to: • How many Councillors are appropriate; • Whether Councillors should continue to be elected in wards or city-wide; • If so, how many Councillors should be elected in each ward; and • Whether the City of Guelph would benefit from having City Councillors who could devote themselves full-time to their Council responsibilities or remain part-time. Depending on the decisions made by Council at the conclusion of Phase 1, the next Phase would evaluate the suitability of the present or of alternative wards (in the event that Council determines that there will be some other number of wards). The wards recommended to Council at the conclusion of Phase 2 will be designed with reference to locally approved guiding principles to “re-divide” the City (see Chapter 8). Watson & Associates Economists Ltd. PAGE 4 \\10.0.0.52\hdrive\Guelph\2020 CCESR\Deliverables\Final\Guelph Council Composition Ward Boundary Review - Phase 1 Report.docx 1.4 Project Structure and Timeline The study started in January 2020 and is expected to be completed by May 2021. It is anticipated that Phase 1 of the study will be completed in November 2020. Phase 1 of the review was to be completed by June after a series of Town Hall meetings across the City in
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