77-2411 HANNIGAN, John Andrew, 1948- MUNICIPAL
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77-2411 HANNIGAN, John Andrew, 1948- MUNICIPAL REORGANIZATION AND CRISIS MANAGEMENT AGENCIES: THE IMPACT OF REGIONAL GOVERNMENT IN ONTARIO ON EMERGENCY AND PROTECTIVE SERVICES. The Ohio State University, Ph.D., 1976 Sociology, ;)copnunity organization Xerox UniversityHierofiSms, Ann Arbor, Michigan 48106 (£) Copyright by John Andrew Hannigan 1976 MUNICIPAL REORGANIZATION AND CRISIS MANAGEMENT AGENCIES: THE IMPACT OF REGIONAL GOVERNMENT IN ONTARIO ON EMERGENCY AND PROTECTIVE SERVICES DISSERTATION Presented in Partial Fulfillment of the Requirements for the Degree of Doctor of Philosophy in the Graduate School of The Ohio State University By John Andrew Hannigan, B.A., M.A. n A /t A A A A A A rt A AAA A A The Ohio State University 1976 Reading Committee: Approved by E. L. Quarantelli R. R. Dynes C. T. Jonassen Advisor Department of Sociology ACKNOWLEDGEMENTS In the odyssey from idea to finished product, there are many who have offered advice and assistance. I am grateful. Dr. E. L. Quarantelli (my advisor) and Dr. Russell R. Dynes, Co- Directors of the Disaster Research Center have contributed substan tially to my sociological understanding and professional development, „ while allowing me the freedom to pursue various "Canadian” projects. For this I am most appreciative. I would also like to thank Dr. Christen Jonassen for participating on my dissertation committee. During the last three years, Emergency Planning Canada has con sistently provided me with backing and assistance. In particular, Burke Stannard has been a warm and interested "guardian.” Thanks also to M r . C. R. Patterson for his continued support of E.P.C. fellows, and to Deborah Dundas for her help in carrying out the survey portion of this researcn. In completing any research document of this type, the transition from rough draft to clean copy is a major and important task. I was fortunate co have a competent and helpful "clerical squad" to assist in this regard. Mim Morris oversaw the typing of this dissertation and provided significant technical assistance. Ann Perozek typed the major portion of the manuscript, while Ruth Chalfant and Annette Haban looked after other aspects of the final typing and proofing. Also, Marti Woodruff and Carol Byrd provided assistance in various ways. Thanks to one and all. I should also note the contributions of my past and present colleagues at the Disaster Research Center who maintained an unflagging interest in the progress of this research. Finally, I wish to thank my family for their support throughout my graduate years. Most of all, thank you to my wife Ruth for her patience, understanding, and assistance. From the genesis of this project over lunch together, she participated in the execution of the research in the roles of compiler, typist, critic, and friend. Much of the credit for the successful completion of this work is hers. ii VITA December 13, 1948 .........................Born - Ottawa, Ontario 1969 ...................................... B.A. in Sociology University of Western Ontario London, Ontario 1972 . ..................M.A. in Sociology University of Western Ontario London,, Ontario 1969-1972 .................. ........... Teaching Assistant, Department of Sociology, University of Western Ontario 1973-1976 .................................. Emergency Planning Canada Research Fellowship, Disaster Research Center, The Ohio State University, Columbus, Ohio 1975 ...................... Teaching Associate, Department of Sociology, The Ohio State University, Columbus, Ohio 1976 ...................................... Lecturer in Sociology Division of Social Sciences Scarborough College University of Toronto PUBLICATIONS "Mass Communications in A Canadian City," Communications in Canadian Society, edited by Benjamin D. Singer, Toronto: Copp Clark, 1972, co-author "Provincial Emergency Measures," Emergency Planning Digest, Volume 3, #3, May - June, 1976, principle author. "Legitimacy and Public Organizations," Canadian Journal of Sociology, Volume 2, forthcoming, 1976, principle author. iii "Anticipating Flood Emergencies: A Case Study of a Canadian Disaster Subculture," Disasters: Theory and Research, edited by E. L. Quarantelli, London: SAGE Publications, forthcoming, 1976, principle author. PRESENTATIONS "The Newspaper Ombudsman and Consumer Grievances: An Empirical Assessment," American Sociological Association, annual meeting, New York City, August, 1976. FIELDS OF STUDY Major Field: Sociology Collective Behaviour and Social Movements. Professor E. L. Quarantelli Complex Organizations and Social Organization. Professor Russell R. Dynes Urban and Community Studies. Professor C. T. Jonassen iv TABLE OF CONTENTS Page ACKNOWLEDGEMENTS................................................ ii VITA .......................... iii LIST OF TA B L E S ................................................. viii LIST OF FIGURES .......................................... xi CHAPTER I INTRODUCTION Purpose of the S t u d y ............................. 3 Sociological Significance of the Research .... 4 Outline of the C h a p t e r s . 7 II LOCAL GOVERNMENT REORGANIZATION: REFORM AND REACTION The Ideology of Local Government Reorgan ization ............................................. 11 Metropolitan Growth and Political Fragmentation The Reorganization of Urban Government: A Rationale Categories of Inter-Municipal Co-ordination . 16 Conditions of Local Government Reorganization . 19 Consequences of Reorganization ................... 21 III REGIONAL GOVERNMENT IN ONTARIO: AN OVERVIEW Nature of Municipal Government in Ontario .... 28 County System Role of the Provincial Government Toronto: The Epi-Center of Development The Perceived Need for R e f o r m ................ 31 The Implementation of Regional Government .... 32 Local Government Reviews The Regional Municipality v TABLE OF CONTENTS (continued) CHAPTER Page The Costs of C h a n g e ................................. 34 Future Restructuring ................................. 35 IV ORGANIZATIONAL CHANGE AND THE CONSOLIDATION OF SERVICES Centralization-Decentralization and Organizational Change ........................... 39 Municipal Structural Consolidation and Organizational Centralization .................. 41 Municipal Reorganization: Two Alternative M o d e l s ............................................. 42 The Impact of Local Government Reorganization: Modes of Measurement............................. 43 Average Unit Cost Studies Performance Indicators Consumer Evaluations Impact Indicators Eknployedin this study . 46 A Model of Structural Centralization of Municipal Services ................................ 48 Regional Community Characteristics and the Consolidation of Services The Consolidation of Services and Organizational Changes Within Functional Service Areas Organizational Changes in Functional Service Areas and Evaluative Effects Evaluative Effects and Citizen (Consumer) Satisfaction Empirical Application of the Model ............. 56 V METHODOLOGY AND DATA COLLECTION Level and Unit of A n a l y s i s ...................... 61 Data Collection and S o u r c e s .................... 64 Secondary Analysis of Documentary Materials Mailed Questionnaires Supplementary Data Sources Strengths and Limitations of the Da t a .......... 68 vi TABLE OF CONTENTS (continued) CHAPTER Page VI ANALYSIS OF DATA The Regional Municipalities: Contextual Characteristics and Basic Types ................ 72 Comparison of Crisis Management Services .... 80 Nature of Analysis ........................ 82 Structural Consolidation and Changes in Police Protection ...................................... 83 Problems Before Regionalization Organizational Changes Emergency Measures Services and Regionalization 112 Emergency Measures in Ontario: Decline and Loss of Legitimacy Structural Location of Regional Emergency Units Changes in Resources and Support Changes in Priorities Fire Protection Services in Regionalized Areas . 120 Changes in Co-ordination Since Regionalization Changes in Activities and Technology Special Training Programs and Promotion Criteria Advantages and Disadvantages of Future Regionalization Disaster Preparedness in Regionalized Areas . 130 Summary of F i n d i n g s ............................. 132 Generalization of Findings ....................... 133 VII IMPLICATIONS, POLICY RECOMMENDATIONS AND SUGGESTIONS FOR FUTURE RESEARCH Sociological Implications ....................... 139 Implications for the Study of Urban Administration .................................... 141 Methodological Implications Theoretical Implications Policy Recommendations ..... ................ 145 Police Protection Fire Protection Emergency Measures vii TABLE OF CONTENTS (continued) CHAPTER Page Suggestions for Future Research ................ 148 Conclusions...................................... 150 APPENDIX A .................................................... 153 APPENDIX B .................................................... 211 APPENDIX C .................................................... 212 APPENDIX D .................................................... 221 BIBLIOGRAPHY.................................................. 238 viii LIST OF TABLES Table Page 1 Index of municipal fractionalization .............. 74 2 Dominance of major urban unit of region .......... 75 3 Population density: 1974 ......................... 78 4 Per capita revenue: 1974 ......................... 79 5 Sizes of municipal police forces in the eight regions where police services were consolidated: two years before