Executive Summary
Bedford residents, through the Bedford Community Council Association - Residents for Bedford Council, propose changes to the Halifax Regional Municipality governance model, by amendment to the Municipal Government Act, to address inequities in representation for the community. The proposal outlined below will have general application throughout HRM for existing communities within HRM. Upon implementation, communities will again enjoy responsible and representative government for their common interests and goals. Once implemented, HRM will be in a position to pursue regional issues for the overall benefit of the area and the Province and many of the local and community needs will be addressed through Community Councils elected by each "community".
Clearly, the existing structure of HRM does not work. This minor change to the overall governance structure of HRM will address many of the issues that seem to frustrate Regional Council and the various communities within HRM.
Background
Bedford is comprised of a community of common interests, historically and geographically defined as the former Town of Bedford. This community has had self-government of varying degrees over the past 75 years.
- In 1921, with a population of 500 persons, a Ratepayers Association was formed.
- In 1957, with a population of 2,000, a Service Commission was legislated.
- By 1980, with a population of 10,000, Bedford was granted Town status.
The Town of Bedford was fiscally sound and had a strong local governance with six councilors and a Mayor representing the community at large.
The community of Bedford has an estimated population of in excess of 20,000 residents (double the population of the community when Town status was granted) and has an assessment base as high or higher than any Town or Municipality in Nova Scotia (which has quadrupled since Town status was granted).
In 1996, the Province forced Bedford into amalgamating with the three larger municipal units (City of Halifax, City of Dartmouth, County of Halifax) to form the Halifax Regional Municipality, in spite of a community plebiscite that indicated the community residents were against amalgamation.
Prior to incorporation as a Town, Bedford was faced with many of the issues that exist today. An easily identifiable suburban area at that time, it was governed to a large extent by the then Halifax County Municipality.
Once Bedford became a Town, it grew into a self-sufficient, fiscally responsible, and well-governed growing community. Within the amalgamated units it was the most financially successful and had a thriving and vibrant community spirit. This success could not have been achieved as part of Halifax County which, much like HRM today, had diverse and competing interests. Many areas within HRM now face the same dilemma.
Within the current governance model, HRM has established Community Councils made up of three or more Districts that are each represented by a Regional Councilor. Bedford has been placed in a Community Council comprised of three (3) Districts, with little commonality of interest. Under this model, Bedford has one (1) representative that sits on a Regional Council of twenty-three (23) representatives (plus Mayor), who are no longer elected at large. This one community representative serves a District with a population in excess of 20,000 people. Bedford's community interests have been diminished over time and there has been little re-investment in public infrastructure in the community by the Regional Municipality in spite of the community's explosive growth. As well, local input into planning and development, as it directly affects the community, has been overshadowed by other interests.
If a Bedford resident were living in a rural area or a town anywhere else in Nova Scotia they would have a higher ratio of representation per resident, ie. not one representative per 20,000 persons, but likely one representative per 5,000 - 8,000 residents. That Council would be responsible for affairs of a community with a commonality of interests. Today, HRM Council hears issues that are wide-ranging, in a cumbersome environment of competing interests, over a vast and diverse region with little commonality of interest.
Since amalgamation, the community of Bedford has doubled in population. The tax assessment in the community has increased exponentially with tax rates having increased dramatically during the same period. During that period, Bedford residents have experienced little in the way of community re-investment by the Regional Municipality, with tax revenues raised from within the community diverted to pay for facilities and infrastructure in other jurisdictions, to the detriment of the Bedford community.
In addition, it is perceived that planning and development policies within the community have not been undertaken with the interests of the community in mind, with no corresponding increase in municipal facilities in spite of increased density and population. Regional initiation and application of Bylaws passed by Regional Council generally have little or no relevance to Bedford and may, in certain circumstances, be detrimental to the residents of the community.
The interests of the residents of the community of Bedford have been ill served under municipal amalgamation. This has resulted in residents of the community forming the Bedford Community Council Association - Residents for Bedford Council - to address these concerns.
There is no doubt that many of the "communities" within HRM have similar concerns and have no ability to achieve their goals within the present governance model of HRM. These concerns have been expressed in a number of forums throughout the region.
Present Action
Concerned Bedford residents have formed the Bedford Community Council Association - Residents for Bedford Council - to address these issues of inequity and local representation. The Bedford Community Council Association is not seeking any advantage for Bedford residents in HRM, but are seeking the right for residents of the community to have a more responsive governance model so that local issues affecting our community can be adequately addressed in a timely manner.
The proposed changes to the MGA would reconfigure the structure and powers of the existing Community Councils, within the existing HRM governance mode. This revised model is not about boundary changes, or an attempt to control civic services best centralized, but is a model that will provide responsiveness to community needs, and allow resident participation in governance similar to that enjoyed by the majority of Nova Scotians.
The Bedford Community Council Association hereby petitions the Province of Nova Scotia to effect changes to the Municipal Government Act (the "MGA") in order to provide the residents of the community of Bedford with a more effective governance model - one where the community has its own Community Council, while remaining within the Halifax Regional Municipality structure.
Although the petition originates from the residents of Bedford, it is the intention of the Bedford Community Council Association to proceed with a generalized proposal which will improve the overall governance model for HRM, while permitting distinct and defined communities within HRM to service their local needs and interests.
Current Governance Model
The governance structure of HRM is a regressive model in that issues that directly affect community interests are discussed by a large and unwieldy Council representing diverse and competing interests, which thwarts progress, promotes inaction and community discord, and creates a forum where overriding competing interests dominate. Nova Scotia cannot continue along the path where its major municipality is unable to progress effectively. It was for this very reason that HRM was created - to allow for effective governance of the area. In our view, the intention was, and still is, correct; however, the model implemented fell far short of its goal. There is mounting evidence now that HRM is stalled and criticism and discontent within the business and residential communities is increasing rapidly both from a regional and community perspective.
It was believed at the time of creation of HRM that the Community Council model would address many of the issues facing communities. This model has failed to live up to its potential as too much authority and financial control remains vested in Regional Council. The Community Councils have little control over fundamental issues affecting the quality of life and services to the community and must compete with other communities for allocation of financial resources creating a shift and dispersion of wealth. In addition, as seen in Bedford's participation in Northwest Community Council, communities of dissimilar interests are co-joined resulting in discord and competition for resources. This exact issue exists in most areas in HRM.
Although the proposed structure outlined below is modeled to fit the needs of the community of Bedford, the recommended changes to the MGA are intended to have global application to HRM as a whole. Under these recommendations, Bedford is simply an example of how this model change will benefit all of HRM. Locally and regionally, the revised model creates responsible governance in all communities within HRM while preserving regional considerations within the present Regional Council structure.
Proposed Governance Model Applied to Bedford
It is the intent of the Bedford Community Council Association to petition the Province to change the MGA in order to establish an elected Community Council in Bedford, to be comprised of three (3) or more representatives (the "Community Councilors") from the community of Bedford. One of the Community Council positions will be identified as the Regional Councilor. Potential candidates will announce which Council position they are running for (Regional or Community) prior to election. The Regional Councilor will be responsible to act as liaison between the Community Council and Regional Council. The three elected representatives shall form the newly created Community Council of Bedford.
The Regional Councilor shall be chair of the Community Council. The Community Councilors shall be elected from the community of Bedford at large. Terms of office shall co-terminate with those of the Halifax Regional Municipality and all elections shall be coordinated by HRM and fall under HRM Municipal Election guidelines.
The Community Council shall meet, at minimum, once per month. The Regional Councilor shall receive remuneration from HRM as per existing Municipal Regional Councilor Stipends with the Community Councilors receiving reimbursement for out of pocket expenses.
The Regional Councilor shall sit on Regional Council, shall report to Regional Council, and carry the authority and duty of service as required of all Regional Councilors.
Responsibilities of Community Council
The newly created Community Council shall be responsible for the establishment of policy, and service delivery of initiatives, on all matters of direct consequence to the community, including:
- Land Use Planning and Development Policy, as it affects the community of Bedford.
- Community Parks and Recreation.
- Culture (eg. museum, library, theatre).
- Main Street and similar programs.
- Local Bylaws and decision-making with respect to bylaws of HRM as they apply in Bedford.
Community Council shall:
- Have the authority to form voluntary support committees comprised of interested residents at large.
- Have the authority to set area rates or establish a supplementary taxing authority.
- Govern and call all public hearings, as they affect the community, as required under the Municipal Planning Strategy.
- Be the governing body for all land planning and policy issues related to the community, as set out in the Regional Planning documents, subject only to appeal to the Utility and Review Board (URB).
- Establish and formulate land use policy and planning for the community of Bedford, in consultation with HRM Planning staff.
- Establish and formulate policy and planning related to community facilities (including, but not limited to, recreational and cultural facilities, parks, and public open spaces under the control of the Municipality); including assessment of community needs, procurement of new facilities and/or disposition of existing facilities, maintenance and repair, and use and programming of community facilities.
In addition, the Community Council shall:
- Review and monitor service delivery and performance of the balance of HRM services to the community (eg. fire, police, EMO, transit, sewer/water, waste management, tourism, social services, etc.).
- Regularly report to the community at large.
- Regularly liaise with applicable HRM staff.
- Regularly report to Regional Council, through the Regional Councilor.
Regional Council will continue with its authority over issues of a regional nature not included in the listing provided above, including (but not limited to) police, fire, wastewater treatment, industrial and business promotion, municipal water, solid waste, transit, tourism, and all other centralized services.
Disputes with respect to jurisdiction will be determined by the URB.
Consideration of whether a "community" can declare itself to be governed in this manner will be determined by the URB, based upon the criteria outlined in the MGA, as amended. One can easily determine that this will be a popular option available to any "community" within HRM and the fact that the regional issues continue to vest with HRM Council will enable that group to implement plans that benefit HRM as a whole, and therefore the Province, without being bogged down in many issues of a local nature.
Proposed Funding
Halifax Regional Municipality shall provide Community Council with funding from HRM's general municipal revenues for management and delivery of the above initiatives, plus an allocation directly related to administrative and program staffing.
The revenue allocation shall be determined based on the community's proportionate share of the total HRM tax base collected (as determined by assessment), as allocated within the HRM budget for each of the above-referenced categories, less any direct HRM administrative expense.
Portions of the revenue base allocated to the Community Council shall revert back to HRM, on a case-by-case basis, to fund HRM special initiatives within the above categories, provided those special initiatives would have a clear and definite benefit to the Municipality as a whole (eg. regional library, central museum/archive storage, etc.). Re-allocation of funds would be undertaken based on the community's population as it relates to HRM's total population.
Service Delivery
The delivery of all programs and services within the community would continue to be undertaken by HRM staff, under the direction of Community Council. In the event that HRM is unable or unwilling to undertake service delivery within a timely manner, or programming falls outside of the normal services provided by HRM, then Community Council shall have the authority to hire or contract alternate service delivery, provided that HRM tendering and procurement processes are followed and HRM collective agreements are respected.
Resulting costs of any new programming/service delivery would be deducted by HRM first from revenues received from programming with any subsequent shortfalls in overall operating expenses deducted from funds allocated to the community.
Timing
It would be the intent to implement the above to correspond with Municipal Elections in the fall of 2008.
