The Case for a Saanich Peninsula Municipality:
A Second Look
Prepared by:
Capital Region Municipal Amalgamation Society
May 2014
Contents:
Section: Page:
Background…………………………………………………………………2
Executive Summary………………………………………………………..2
C.Why would a municipality want to ask its residents about
amalgamation?...... 5
D.Industry and Tourism……………………………………………………...7
E.Shared Services…………………………………………………………….7
• Panorama Recreation Centre
• Peninsula Sewage Treatment Plant
• Peninsula Emergency Measures Organization (PEMO)
• Water Services (Water Commission)
• 9-1-1 and Police & Fire Dispatch Services
F.Partially Shared Services…………………………………………………9
• Library Services
• Police Services
• Fire Departments
•CREST
G.Planning and Development……………………………………………..11
H.NGO’s with a focus on the Saanich Peninsula Organizations……….11
I.GOVERNMENT ENTITIES WITH A PENINSULA FOCUS……………..12
J.MUNICIPAL DUPLICATION……………………………………………...12
K.Employee Collective Bargaining Units ………………………………..13
L.BC TRANSIT………………………………………………………………..13
M.WHAT’S HAPPENING ELSEWHERE?...... 14
• Cowichan Valley
• North Vancouver District-North Vancouver City
Appendices:
1.Legislative Framework for Municipal Restructuring (the initial vote)
2.What happens if a non-binding vote passes? – The Study.
3.What happens if a Study recommends a restricting change?
4.TRANSITIONAL GRANTS FOR RESTRUCTURING
5.Saanich Peninsula Land Base
6.Simplified Amalgamation Flow Chart
Letter from City of Duncan CAO to Duncan Council dated May 5, 2014
A. Background
Earlier this year the councils for Sidney, Central and North Saanich were approached by Amalgamation Yes and asked to place a non binding question on the 2014 municipal ballot to determine the level of public support for an amalgamation of municipalities within the CRD. Each council voted not to proceed. Subsequent discussions with several councillors and peninsula residents indicated that there is support for a Saanich Peninsula amalgamation study and that a more focused look at this topic within the context of an amalgamated Saanich Peninsula is warranted.
B. Executive Summary
This paper does not represent an exhaustive study of the potential gains (or losses), synergies or efficiencies that might result from amalgamating the three Saanich Peninsula municipalities. It is intended only to provoke a discussion of possibilities.
- A glance at a map reveals the unique qualities of the Saanich Peninsula. Surrounded on three sides by water, it contains much of the farmland in the Capital Region District. It also has rolling vistas, breathtaking scenery and small urban communities. The Peninsula is home to the world famous Butchart Gardens, Vancouver Island’s premiere tourist destination, and two major regional transport hubs – the Victoria International Airport and the BC Ferries terminal at Swartz Bay.
Despite its many homogeneous characteristics, the Peninsula has evolved into three separate municipalities over the past 50 years. Originally, Sidney and North Saanich were combined, then parted ways. Likewise, Central Saanich was once a Ward of Saanich, from which it separated in 1950. Are three municipalities serving the best interests of the Peninsula and will they continue to do so in the future?
2- The three Peninsula municipalities encompass approximately 10,412 hectares, plus 905 hectares of First Nations lands. The population of the three municipalities is about 38,000, plus another 3,000 people residing on First Nation lands. Central and North Saanich have large agricultural land bases, while Sidney is the Peninsula’s largest shopping area, augmented by smaller commercial centres in Saanichton and Brentwood Bay. New commercial areas are currently being planned on Tseycum First Nation land and the former Sandown Raceway site in North Saanich.
3-In addition to hosting major regional transportation portals, the Peninsula is also home to two of the major light industrial areas in the Capital Region, situated on Victoria International Airport lands and at Keating Park.
4-The three municipalities have more commonalities than the other 10 municipalities in the Capital Region. A shared recreation complex, shared secondary sewage treatment, a trunk sewer system, the Peninsula Water Commission and combined Emergency Management Plan are some of the common services in the Peninsula.
5-Central and North Saanich enjoy rural ambiance and have similar values for land use planning and the protection of farmland. North and Central Saanich also have excellent relationships with First Nations neighbours.
6-There are many non-government organizations (NGOs) on the Peninsula whose activities encompass all three municipalities. Community and business affinity groups operate as if the Peninsula is a single entity. Perhaps this is an indication that Peninsula residents are at the vanguard of the local governments. Furthermore, the community newspaper, the Black Press Peninsula News Review, covers news and activities for all three municipalities in single edition.
The integration of municipal services on the Peninsula may have reached a point where another alternative should be considered – amalgamation. The three municipalities operate similar functional and operational departments and provide similar services to their residents, e.g. finance, corporate and administrative services, information technology, planning and development, building inspection, engineering, public works services, fire departments, policing, and by law enforcement.
The three municipal councils meet jointly – the only such arrangement in the Capital Region. Perhaps integration has reached a point where amalgamation deserves investigation and comparison to the status quo.
The Sidney and the Central Saanich police/municipal halls require upgrade. Central Saanich has sought public input on how to proceed. Sidney has completed a renovation in the recent past, but will also need to upgrade or replace the hall at some point in the future. The North Saanich municipal hall, constructed prior to incorporation in 1965, may be usable for the foreseeable future. However, constructing three new municipal administrative buildings, one for each municipality, should be evaluated within the alternative approach of amalgamating the three municipalities and constructing a single new facility for future needs.
One of the few significant differences between the three jurisdictions is in the provision of police services. Sidney and North Saanich contract with the RCMP, while Central Saanich has its own municipal police department. The Honourable Suzanne Anton, Minister of Justice, announced a police services review based on the Oppal Commission report Forsaken: The Report of the Missing Women Commission. The report specifically pointed to policing in the CRD, as well as Metro Vancouver, as contributing to ineffectual and inefficient policing in the region. The review is scheduled to be completed by 2015, and raises the very real possibility of an imposed regional police service.
C. Why would a municipality want to ask its residents about amalgamation?
Amalgamation means uniting or merging two or more entities into one. Hence, amalgamation is an issue that goes outside normal municipal boundaries, beyond the authority of any one municipality. That is precisely why consent of all participants is required before amalgamation can take place.
Amalgamation is a topic that is increasingly at the forefront in the Capital Region. While there may have been valid reasons in the past for municipal restructuring, local governments working separately on the Peninsula may not be as effective as they once were.
Without an in-depth and objective study, residents cannot be assured by municipal leaders that the status quo of three municipalities provides more effective governance than a single Peninsula municipality. Statements about feasibility, costs and benefits must be supported by independent unbiased studies. The methodology suggested by Amalgamation Yes (See Figure 1) would provide a means of determining public interest within a non-binding context for the subject councils. It would demonstrate respect for the residents of the region, giving them the opportunity to ask for additional information through a plebiscite process. It would also serve to provide clear policy direction to municipal councils as to the wishes of their electorate through a democratic process.
Councils have authority to determine public opinion through a non-binding vote during the forthcoming 2014 municipal election, at negligible expense. The BC Community Charter, Section 83, provides for municipal councils to approve such a vote “a council may seek community opinion on a question that council believes effects the municipality, by voting…..the results of a process under this section are not binding on council.”
STEP ONE: Non-binding vote (plebiscite) - An opportunity for public review
Municipal amalgamation has been debated in Greater Victoria for many years. The Capital Region Municipal Amalgamation Society, aka Amalgamation Yes, was formed in 2013 with the goal of bringing the issue forward for a vote in the 13 municipalities to determine the level of public support for some form of governance restructuring within the CRD.
Initially, the emphasis was on the democratic need for the public to vote on the question, and there was no focus or preference for a particular model. However multiple contacts from peninsula residents have demonstrated support for a potential restructuring of municipal governments on the Peninsula only. (Note that a similar interest has been expressed by West Shore residents for that region and a municipal referendum is being considered by several West Shore councils.)
Therefore, each of the three Peninsula councils is requested to reconsider the wishes of residents and to approve an amended question, within the Peninsula only, on the 2014 election ballots. For example, the question might be worded thus:
Are you in favour of approaching the Province of BC to provide funds for a study to investigate the feasibility, costs and long-term effects of amalgamating the municipalities of North Saanich, Central Saanich and Sidney?
STEP TWO: A study to develop options and compare with the status quo
A non-binding referendum in each municipality, held under Section 83 of the Community Charter, is necessary to democratically measure the public appetite for reviewing alternative municipal models in a non threatening manner. If greater than 50% of voters in two or more municipalities vote Yes, those municipalities could approach the Province and request a study be funded to investigate various amalgamation and restructure models. The Ministry of Community Sport and Cultural Development has allocated grant funding for municipal restructuring studies (see Appendix 2).
A Provincially-sponsored study would ensue, to include public input and an evaluation of potential synergies, efficiencies and identification of costs and benefits. A full and objective study, overseen by the Province in conjunction with municipal councils, would compare the current municipal structure with other options, providing important information from which the electorate could make an informed decision on governance for the peninsula. If there are valid reasons to retain three separate Peninsula municipalities, they would be identified by an objective study. Important questions would be answered, such as whether taxes would rise, fall or stay the same for various property classes, and could services be delivered more effectively and cohesively. Management of long and short term debt, debt servicing and reserve funds would also need to be addressed.
STEP THREE: A binding referendum
Based on the outcome of the study, recommendations and options for potential municipal restructuring could be presented to the voters for approval in the form of a subsequent BINDING referendum in 2018, before any change in governance could take place. This would ensure that the residents make this important decision, rather than the municipal councils. If the binding referendum failed in any jurisdiction, the existing municipal structure would remain unchanged in that municipality. It should be noted that the Province also provides additional grants to assist local government with the costs of restructuring (see Appendix 4)
D.BUSINESS, INDUSTRY AND TOURISM
Saanich Peninsula tourism, through the chamber(s) of commerce, is partially funded through municipal contributions. Tourism dollars benefit the economies of all three municipalities, either directly or indirectly. A single Peninsula municipality would share the costs and benefits of tourism promotion. It would also simplify tourism promotion by bringing decision-makers to one table. The peninsula business and industrial sectors would also benefit from simplified interactions with one unified municipal council.
E.SHARED SERVICES
Residents of the Peninsula share some services funded through the annual CRD tax levy:
Saanich Peninsula Wastewater Treatment Plant. The plant began operations in 2000, serving those residents of Central Saanich, North Saanich and Sidney who are connected to sanity sewers. The facility is owned by Peninsula residents and could, under one unified municipality, be operated as a municipal service, with or without CRD involvement. Had there not been three separate municipalities in 2000, the Peninsula could have implemented its own sewage treatment. The fact that there are three required implementation through the CRD. In contrast, the District of Sooke constructed a sewage treatment plant with no involvement from the CRD.
Peninsula Recreation – Panorama Recreation Centre. The Panorama Recreation complex is an excellent facility. Owned and financed by the residents of the three Peninsula municipalities, through the CRD, it is governed by the Peninsula Recreation Commission. A unified Peninsula municipality would have the option of assuming ownership and operation of the complex, without CRD involvement. Esquimalt and Oak Bay are two local examples of municipalities that own and operate recreation facilities. A unified Peninsula municipality would have a significantly larger tax base and population than either Oak Bay or Esquimalt. Hence, it could expand the parks department to include a recreation department to operate the Panorama Centre. Personnel could transfer over as employees of the new municipality (CRD employees are members of CUPE Local 1978). The Panorama Centre is operated by the CRD because none of the Peninsula municipalities were prepared to own and operate the Centre and contract with the other two for public access. Purchasing, payroll and general administration would become the responsibility of the new unified municipality. Any and all revenue raised from the operation of the Centre would directly benefit the municipality.
Peninsula Emergency Management Organization:
To their credit, the Peninsula municipalities currently have a single emergency planning organization. This is the only area within the 13 municipalities of the Capital Region that has a single emergency plan for more than one municipality. It serves as a positive example of the benefits of working in a unified manner.
Water Services:
The Saanich Peninsula Water Commission administers the peninsula bulk water distribution system. The Commission is composed of 11 commissioners appointed by the member municipalities and from groups representing agriculture and First Nations. Bulk water from the CRD reservoir is sold to the three municipalities.
9-1-1, Police and Fire Dispatch Services:
Sidney/North Saanich receive 9-1-1, non-emergency call-taking, and police dispatch services, on a 24/7 basis from the RCMP Communication Centre located at the West Shore RCMP. Central Saanich also contracts with the RCMP for these services, for which they pay an annual fee. North Saanich, Central Saanich and Sidney fire departments are dispatched by Saanich Fire Department.
F.PARTIALLY SHARED SERVICES
Library Services:
Central Saanich is one of 10 municipal participants of the Greater Victoria Public Library, which has a local branch in Brentwood Bay. North Saanich and Sidney are members of the Vancouver Island Regional Library, which has a branch in Sidney. Both library organizations are owned by their member municipalities and regional districts. A study would need to include options for library services.
Police Services:
The Town of Sidney and District of North Saanich contract separately with the RCMP for police services. Sidney provides the accommodation for both RCMP components and North Saanich contributes a rental portion.
The Province has a small component of rural RCMP members who service Willis Point, Sidney, James Island and other small islands, as well as four First Nations lands. The Sidney RCMP contract is for 14 RCMP members and North Saanich contracts for 11 members (as at December 2011). The detachment is officially known as the Sidney/North Saanich RCMP Detachment. Central Saanich has a separate municipal police force consisting of 25 officers (as at 2012), and a police board providing governance and budgetary oversight. The Central Saanich Police share a common building in Saanichton with the District of Central Saanich municipality.
The Minister of Justice/Attorney General holds ultimate authority over policing throughout the Province, and all decisions related to policing must be approved by the Minister. A local example of the exercise of that authority occurred in 2002, when the Provincial Attorney General ordered the separation of the police and firefighting duties of the combined police and fire department in Esquimalt. The Minister also prohibited Esquimalt from creating a separate stand alone police department, requiring that they seek expressions of interest from existing police forces. Esquimalt selected the Victoria Police Department (the RCMP did not submit a proposal). In 2011, Esquimalt asked the RCMP, Saanich Police and Victoria Police to submit proposals, which was compared against the cost of the existing service provided by Victoria Police. Esquimalt subsequently requested permission from the Minister to switch to RCMP services, but the was declined. A 10 year agreement has since been signed to extend Victoria Police services in Esquimalt.
On November 12, 2013, the Ministry of Justice announced it is conducting a review of police services, based on recommendations made by the Honourable Wally Oppal. QC Commissioner in the report Forsaken: The Report of the Missing Women Commission of Enquiry concerning the murdered women in the Robert Pickton case. The review is scheduled for completion in 2015 and could lead to an order for the creation of regional police departments for Metro Vancouver and Greater Victoria. The Oppal report specifically referenced the ineffectiveness of multiple forces in Greater Victoria. It was also cited as a major cause of response delay in the Verdict at Coroner’s Inquest, Chun, Park, Lee Deaths in Oak Bay.