In the previous article in this series (see Part 1), it was discussed how many people in Prince George perceive that too much power has been concentrated in the hands of the Mayor and City Manager, resulting in the marginalization of councillors and, by extension, the citizenry of the city.

How has this concentration of power come about? Once again, the “Code of Ethics” originally drafted by the city administration, and later approved by Council with revisions, could provide answers.

Under the section “Policy role of members,” the Code lays down the law to city councillors that they “shall respect and adhere to the Council – City Manager structure of municipal government as practised in the City.” It goes on to say that “in this structure, the Council determines the policies of the City with the advice, information and analysis provided by the city staff and Council committees.”  And it concludes with the statement that councillors “therefore shall not interfere with the administrative functions of the City or with the professional duties of city staff, nor shall they impair the ability of staff to implement Council policy decisions.”

Thus, according to the Code, a strict separation or firewall exists between Council and administration, i.e. Council is confined to setting policy (and that is all), based on advice and information provided by the administration.  And administration implements it.  End of story.

But is this strict separation the norm in all BC and Canadian municipalities? Since 1998, according to a UBCM document on local government, BC municipalities have been provided with a broader and more flexible range of organizational options (1).

Indeed, the UBCM document concludes that the “predominant style of municipal government in British Columbia … is direct involvement of elected officials and other citizens through committees, boards, and commissions in policymaking and, in some, involvement in administration as well.”

On this topic, the Canadian Encyclopedia notes that, in regards to municipal government, “a clear cut distinction between the two functions of policy and administration is not always easy to maintain” and that “few municipalities have attempted the rigid, formal division inherent” in the Council – City Manager structure. And that, in practice, “municipal councils often make suggestions with respect to administration.”

In light of the above, it appears that, far from being in the mainstream of municipal administration practices, the current Council – City Manager structure, as defined in the City of Prince George’s “Code of Ethics,” is an extreme version, one which assigns much more power to the City Manager and city administration and less to Council.

So where does the mayor position fit into the BC municipal structure? According to the UBCM document, “the mayor is expected to exercise leadership but, except for some appointment and agenda-setting authority, he or she is for policymaking purposes just another member of council.”  It further clarifies that, “a municipal council is a continuing body that speaks with one voice.  It cannot be bound by the mayor or an individual member.”

Thus, under the BC and Canadian system, the mayor must, as a member of council, “reflect the will of council” as part of his or her responsibilities. It follows that a major part of the mayor’s work is to build consensus among councillors around policy.

But what if the mayor is unable or incapable of building this consensus? Then, of course, we have a dysfunctional mayor and council.

So who is in charge: the mayor and city manager or city council? According to BC’s Community Charter, “the governing body of a municipality is its council,” which is democratically elected, and is an order of government “established and continued by the will of the residents of their communities.”

Note that it is not the mayor, the city manager or the city administration in which the power to govern resides. All have their duties and responsibilities, but ultimately council must be the sole governing body.  Or, at least, that is what is supposed to exist.

Many people in Prince George feel that the current municipal structure is out of whack with too much power in the hands of the Mayor and City Manager, at the expense of Council and, by extension, the citizenry.

Both candidates for mayor appear to be conscious of this imbalance, although neither so far has been too explicit in their criticism. Don Zurowski has pledged that he will strive to improve relations between senior administration and Council, as well as between senior administration and staff.  He also has indicated that he would like more transparency at City Hall, which is presumably about increasing access to information, an issue that has come up with increasing frequency over the last few years.

For his part, Lyn Hall also wants to improve relations between mayor, council and administration, as well as re-connect with the community. He proposes that council be restructured so that individual councillors would each serve as a liaison between Council and a particular area of the city administration.  This is an arrangement currently used by the municipalities of Burnaby and Victoria, and, some feel, helps bridge the information gap between council and administration.

One thing is clear. Many people, from all walks of life and political persuasions, are dissatisfied with the current municipal structure in the City of Prince George and have been for a long time.  Councillors feel left out, lower level staff feel alienated, as do many citizens.  There is also the nagging fear that unless significant changes are made the situation could simply repeat itself.

What should be done? One option is for the new council to conduct a comprehensive review of Prince George’s municipal structure, with special attention paid to the relation and balance between council, mayor, city manager, administration, and city employees, as well as possible new mechanisms for citizen involvement in decision-making.

The Community Charter allows for some flexibility in municipal structure. We should take advantage of this opportunity, conduct a review, and develop a renewed “made in Prince George” structure that expands the democratic process and works for all the people in the city.

This is the final article in this series.

Peter Ewart is a columnist and writer based in Prince George, British Columbia. He can be reached at: peter.ewart@shaw.ca  Dawn Hemingway is an educator also based in Prince George.

 (1) Bish, Robert L. & Eric G. Clemens.  “Local government in British Columbia.”  Union of BC Municipalities.  4^th Edition.  2008.

(2) The Canadian Encyclopedia. “Municipal Government.” Oct. 13, 2014.