Bureaucratic Entropy in Thunder Bay

There are constant comments in Thunder Bay that there are too many municipal workers and that the numbers have grown faster than the city itself.  In a 1979 article in the Urban Affairs Quarterly titled “Economy of Scale or Bureaucratic Entropy? Implications for Metropolitan Governmental Reorganization”, Hutcheson and Prather examine the relationship between the number of city employees and city population.  This study was done given the fashion of the time to implement metropolitan and regional city governments that consolidated jurisdictions that often was justified by the argument that more efficiency and economy in service delivery would result.  According to the authors:

“If efficiency can be defined as serving more residents with fewer employees, economies of scale might be demonstrated by a relative decrease in the size of bureaucracies as city size increases.” (Hutcheson & Prather, 167).

However, the authors find that not to be the case.  Increases in the number of employees appear to have outstripped the growth in population in the wake of amalgamations and metropolitan reforms.  The new institutions appear to have generated a dynamic in which has resulted in less rather than more efficiency.  They call this bureaucratic entropy.  Essentially, the new institutions create a kind of disorder, which decreases the efficiency with which manpower is converted into service outputs.  Or as they write:

“Or more simply put, it could be easier to ‘goldbrick’ in a larger bureaucracy.  Thus increasing city size may mean proportionately larger bureacracies, and perhaps diseconomies of scale.” (Hutcheson & Prather, 168).

Well, it would appear that bureaucratic entropy is alive and well in Thunder Bay at the municipal level.  The accompanying figure shows full-time equivalent employment numbers for the City of Thunder Bay for the period 2001 to 2011.  In 2001, FTE employment was 1,632.0 whereas by 2011 it had risen by 25 percent to reach 2032.7 (my estimate based on the 2012 operating budget breakdown).  Over the same period, the CMA population of Thunder Bay went from 121,986 to 121,597 – essentially, a stable population.

So is this bureaucratic entropy?  Did the creation of monopoly municipal government at the Lakehead after amalgamation in the place of the former competitive municipal structure of twin cities put in place a bureaucratic structure that does not keep costs in check?  That may be part of the explanation.  Another explanation lies in the mix of city services, the demand for new services as well as changes in their quality.  Municipal governments are expected to do more than they did in 1970 particularly in the areas of health and environment. Tied to all of this is the fact that in Ontario, municipalities are creatures of the provinces and there is often the downloading of functions that necessitate new employment.

A better question is the following.  Has municipal employment in Thunder Bay been growing faster than Canada as a whole?  Compare the following – from 2001 to 2011, municipal employment in Thunder Bay grows by 25 percent while population remains stable.  For Canada as a whole during this period, the number of municipal employees grew by 24 percent but population grew by 11 percent.  While municipal employment in Canada has been growing faster than population – perhaps an indicator of some bureaucratic entropy – the growth is more pronounced in Thunder Bay. 

Resolute Responds

Today’s Chronicle Journal had a one-page ad by Resolute Forest Products written in response to a Chronicle Journal editorial on July 18^th entitled “Innovation But When”.   In the response, Resolute maintains that the editorial implies that there has been no capital investment or pro-active action taken by any Canadian or North American company relative to the forest products industry.  Resolute then proceeds to list the major capital projects it has recently announced: a 54 million dollar investment for improvements to a wood waste boiler and steam turbine installation at the Resolute Thunder Bay mill, an 8 million dollar upgrade of its sawmill complex, a 30 million dollar investment in the idled Ignace mill and another 20 million dollars at the newsprint mill in Iroquois Falls.

Resolute is justifiably miffed at being lumped in with a large chunk of the forest industry that did not invest sufficiently in its mills and met the perfect economic forestry storm of the early 21^st century with aging infrastructure and equipment. Resolute is indeed an example of a proactive and engaged forest products company and its investments are key to the survival and prosperity of the forest products industry in Thunder Bay and the Northwest.  There is also its relationship with CRIBE (Centre for Research and Innovation in the Bio-Economy) and FP Innovations, which will look at innovative ways of using forest biomass.

In Thunder Bay, Resolute is the only survivor of that economic storm with a mill complex that dates back to the 1920s.  The Resolute mill is the latest corporate incarnation of the Great Lakes Paper Company, which over time has been Great Lakes Forest Products, Canadian Pacific Forest Products, Avenor, and Abitibi-Bowater. A hallmark of the original Great Lakes Paper was that it was locally owned and an example of local Lakehead entrepreneurship.  Having our own locally owned head office meant substantial control over investment decisions and white-collar employment that deepened our local labour and professional opportunities.  Indeed, the fact that this is the only pulp mill that ultimately survived out of the four mills in Thunder Bay is a testament to the original good decision making in plant and equipment that made the company viable for resale and continued production in the long run.

Resolute is also correct in maintaining that it had to deal with economic events largely out of its control such as the appreciation of the Canadian dollar or the decline in demand for newsprint driven by the technological change of the computer age.  Indeed, taking out a one-page newspaper ad is a wonderful example of supplier- induced demand. However, Resolute has developed a selective historical memory and conveniently omits the effect of provincial government policies on the forest sector crisis.  Indeed, it was not too long ago that the North cried out in protest against provincial wood allocation and electricity price policies.  Moreover, there was the exceedingly slow response of the provincial government in realizing the extent of the crisis and finally offering some relief in areas such as electricity prices. 

Finally, it should be noted that even active management and being proactive cannot always save you from the realities of the market especially when combined with slow or ineffective government policy assistance or indeed detrimental trade policies such as the softwood lumber dispute.  Witness what has happened to the Buchanan mills even with all their energetic responses and efforts.  It is an important lesson we should not forget.

Globe2Go From Thunder Bay

Well, I was rather disappointed to receive a letter from the Globe and Mail last week

informing me that the Globe and Mail would no longer deliver a paper copy in Thunder Bay starting September 1^st.  The letter stated rising costs and service delivery issues as the reason and offered as a substitute a cheaper subscription to the electronic Globe and Mail known as Globe2Go.  Oddly enough, our service has actually improved immensely over the last while and given all the airline competition and additional flights out of Thunder Bay (The Toronto edition of the Globe & Mail is flown into Thunder Bay every morning and delivered throughout the day) I do not see how costs have risen that much.  Yet, who am I to quibble with one of our many overlords from Toronto who constantly develop new methods to affect our daily lives here in the North.

In some respects, I suppose this was probably inevitable. I used to have a subscription to the National Post and they too left the local market citing costs.  They also dangled the prospect of a digital subscription at the time they left. This departure is particularly annoying because it also means I will no longer get my Sunday New York Times delivered.  It came on the Monday but its heft was something I looked forward to. 

Now, its not that I do not use computers or the internet (I'm blogging am I not?).  However, I find reading a newspaper on the computer or an ipad or an ipod inevitably feels like …being at work.  For some reason, I find reading the physical newspaper a more reflective ritual whereas once I’m on an electronic device I simply point and click on a few items, scan quickly and move on.  I get greater personal value from the more expensive hard copy than I do from the cheaper digital version.  If I’m only going to point and click on half a dozen stories, well the main ones are available for free on the web either from the Globe or dozens of other competitors.

Moreover, once you are into electronic subscriptions, the market opens up dramatically.  Whereas I only have the choice of the Globe and Mail or my own local paper when it comes to hard copy newspapers, once I start to consider electronic subscriptions – well, the choice is limitless. In some ways, this is an opportunity to reappraise how I currently get my news. I suppose the Globe and Mail is gambling I am so addicted to their product that an electronic Globe is better than no Globe at all.  I’m not so sure.  Maybe it is time to subscribe to the New York Times electronically or perhaps the Guardian to get my international news and rely on my local newspaper subscription and free web access to Canadian dailies for my Canadian news.  Maybe it is time to consider the choice between what the Globe offers electronically compared to the National Post.  In any event, I’m going to take some time to decide what I’m going to do given that I now am being forced to choose.

By the way, when the National Post decided to stop delivering in Thunder Bay, I did not take out the digital subscription.

Thunder Bay's Employment Surge

Data from Statistics Canada on Thunder Bay's unemployment rate, employment and labour force suggest that its economy is experiencing a rebound after quite a few years of slow performance.  The most recent unemployment rate in Thunder Bay for May 2012 came in at 5.7 percent, which is well below the national and Ontario unemployment rates.  Of course, one of the reasons our unemployment rate is so low is that the labour force has not been growing as fast as employment but the last twelve months suggest that employment has actually begun to grow faster than the labour force.

Figure 1 shows unemployment rates (seasonally adjusted) for Canada, Ontario, Thunder Bay and Greater Sudbury for the 2009 to 2012 period on the left and total employment (seasonally adjusted)  for Thunder Bay over the same period on the right.  As can be seen, the period from June 2011 to January 2012 saw robust increases in employment followed by a decline since.  Overall, employment levels in Thunder Bay are the highest that they have been in the last three years.

Figure 1

The second figure shows annualized growth rates (May to May) for 2010, 2011 and 2012.  Thunder Bay's labour force actually shrank in both 2010 and 2011 but it grew substantially in 2012 - along with employment.  Employment in 2012 grew by 5.3 percent while the labour force grew by 3.8 percent.  As a result,  the unemployment rate dropped below 7 percent in 2011 and in 2012 has fallen below 6 percent.  However, the total level of employment in May 2012 is 61,500 - which is still down from the high of 67,400 reached in March 2003 but up from a low of 57,400 as recently as June 2011.

Thunder Bay's economy appears to have begun to recover from the forest sector collapse but still has ground to go.  Moreover, its employment still seems to be subject to somewhat erratic fluctuations.  While June 2011 to January 2012 saw a period of sustained increases, employment has declined since then.  Thunder Bay is still very much an economy in transition.

Figure 2

Thunder Bay's Fiscal Follies

The Thunder Bay City Council budget situation grows more and more curious.  A media report yesterday contained what can only be termed contradictory information.  On the one hand, the story in the Chronicle-Journal stated that: “The proposed budget includes a 2.67 per-cent property tax increase on top of a 1.5 percent hike for the enhanced infrastructure renewal program.”  This means that the combined property tax increase for this budget year is actually 4.2 percent.  Yet, a little later in the story, Councilor Linda Rydholm is quoted as saying she was willing to support the budget because: “At ward meetings and other places, it seems like people are expecting the 2.67 per cent increase, particularly knowing that 1.5 percent is for infrastructure, roads and buildings.”  In other words, the tax increase is 2.67 percent but the 1.5 percent is included. 

It would appear that we are still sorting out the size of the actual increase in Thunder Bay’s 2012 municipal taxes.  Moreover, it would appear that even city councilors are confused as to whether the total increase is 2.67 percent or 4.2 percent.  Add to this the fact that seven million dollars was inadvertently left out of this year’s municipal budget and now will be funded out of the reserve fund, one has to wonder what exactly is going on?  Is there some confusion on the part of the media in understanding council's message?  Are city councilors unable to grasp the details and complexity of the budget process?  Are city administrators and councilors engaged in a strategy of sowing confusion to obscure the true size of the increase? Or is this simply some giant comedy of errors at taxpayer expense?

If the total municipal tax increase is indeed 4.2 percent, it means that total payments to the city by municipal ratepayers will rise nearly 5 percent this year once the rise in water rates of 6.7 percent is included.   In 2011, the water bill for the average household was 714 dollars while the average property tax bill was 2,501 dollars.  Using these figures to compute a weighted average results in an increase of 4.8 percent in total payments by ratepayers to the city in 2012 (4.8=0.22*6.7+0.78*4.2).  Breaking up a 4.8 percent increase into three separate numbers may fool some of the taxpayers some of the time but it cannot fool all of them.  If City Council wants to remain at all credible, it will need to come clean and address this confusion and very quickly.  This credibility is all the more important given the cost overruns for operating the new waterfront park and the desire to build a new multiplex that will also require a large public operating subsidy.

Northern Economist on the Census!

Well, the release of the 20111 Census results yesterday spawned alot of media activity for me yesterday ranging from the Huffington Post to Thunder Bay Television News to editorial mention in the Thunder Bay Chronicle-Journal.  Thunder Bay Television has posted part of the interview they conducted with me on Youtube which you can access here.

2011 Census Results for Population In: Northern Ontario Declines

Statistics Canada released the first set of 2011 census results today dealing with population and dwelling counts.  Canada's population is up 5.9 percent from 2006, Ontario's is up 5.7 percent while within Ontario, the North is down overall by 1.4 percent.  As the accompanying table shows, the Northeast stayed stable in terms of its overall population while the Northwest showed a decline of 4.7 percent.  As for the major urban centers of the North, Greater Sudbury posted a 1.6 percent increase, North Bay a 1 percent increase, and Timmins a 0.4 percent increase.  The Sault and Thunder Bay both saw declines in their populations of -0.4 and -1.1 respectively.

The Northwest during the period 2006 to 2011 worked its way through the aftermath of the forest sector crisis with the region outside of Thunder Bay bearing the brunt of the employment and population adjustment.  Employment and GDP in Thunder Bay shrank by about 10 percent during the forest sector crisis and its population has been remarkably resilient given the decline.  Employment in the region outside of Thunder Bay shrank by almost 30 percent.  Employment numbers over the last year have been showing increases in Thunder Bay and the Northwest and these population results are hopefully a lagging indicator.  The Northeast has been buoyed by its mining sector though there is a redistribution of population towards the major urban centers.  Evidence from the Northeast suggests that should the Ring of Fire mining development successfully proceed, the Northwest can also expect to see stabilization and even some growth in its population.

What will be interesting is the additional sub-regional breakdowns in population with the Northeast and the Northwest.  For example, between 2001 and 2006, while the Northwest declined in population, the Kenora District actually saw increasing population.  As well, the aboriginal population increased substantially in the Northwest between 2001 and 2006.  Further results and analysis on whether these trends have continued since 2006 to come.

Investment Activity and Trends in Northern Ontario: Part Three – Thunder Bay and Sudbury

In this third installment on investment activity in Northern Ontario as illustrated by building permit data, I am going to focus on the roles of Thunder Bay and Sudbury.  These are the two largest urban centres in Northern Ontario with CMA populations of 122,000 and 158,000 respectively accounting for about 38 percent of Northern Ontario’s population of 745,000.  As the largest urban nodes, one would expect them to be major drivers of economic activity and new investment and the data suggests that they are indeed major economic contributors but are not exactly punching much above their population weight.

Figure 1 shows the total nominal value of building permits (and the linear trends) issued in Thunder Bay and Greater Sudbury over a 20-year period and reveal that Thunder Bay has stayed relatively flat over this period whereas Sudbury enjoyed a pronounced boom from 2003 to 2009 but has since cooled off somewhat.  More interesting is Figure 2, which plots Sudbury’s share of Northeastern Ontario’s permits, Thunder Bay’s share of the Northwest’s permits and then their combined share of all of Northern Ontario.  On average, over the period 1989-2011, Greater Sudbury has accounted for about 34 percent of all building permit values in the Northeast and Thunder Bay for about 60 percent of the values in the Northwest.  Both of these are in line with their respective population shares with Thunder Bay somewhat more dominant in its region and together they account for an average of about 41 percent of Northern Ontario’s building permit activity.  This share has been trending down slightly over the period 1989-2011 generally as a result of weaker performance by Thunder Bay given that the trend for Sudbury has been pretty constant.

While Thunder Bay and Sudbury are important economic drivers for the region, these results suggest that they are not overly dominant and that new investment activity is dispersed throughout Northern Ontario.  The other towns and cities of the North – particularly Sault Ste. Marie, Timmins and North Bay – are also important drivers.  Thunder Bay and Sudbury’s share of new investment activity in Northern Ontario is approximately the same as their combined population share of the region.

Employment Picture Improves in Thunder Bay

The latest Labour Force Survey numbers from Statistics Canada suggest the Canadian economy as a whole is treading water as employment stayed virtually unchanged while the unemployment rate edged up slightly.  However, the results for Thunder Bay show a decline in the unemployment rate to where it now is at 6.2 percent - well below the national average of 7.6 percent.  In addition, the numbers for the last four months show that both employment and the labour force have expanded in Thunder Bay.  Between October 2011 and January 2012, employment rose from 60,100 to 63,600 - an increase of 6 percent.  Meanwhile, the labour force grew from 64,600 to 67,800 over the same period - an increase of 5 percent.  Employment has actually been growing faster than the labour force recently which is good economic news.  What is the source of all this growth?  Well, the numbers are not broken down locally by sector but the national numbers show increases in annual employment growth (January 2011 to January 2012) in the natural resource and construction sectors as well as transportation and housing.  It is likely a similar trend is at work in Thunder Bay given the numerous construction job sites dotting the city, the mining service activities and our traditional transportation role.