Stalled North Westside Governance Study - Castanet Interview My Notes

The Stalled Governance Study

Director Carson outlines a multi-year effort to secure a comprehensive governance study for the North Westside. Initially, the Regional District Central Okanagan (RDCO) Board and the North Okanagan Regional District (NORD) Board both unanimously supported moving forward with a study. The plan required the two regional districts to collaborate on a joint grant application for a final study covering the relevant areas and issues.

Progress halted and later Director Carson discovered that in the spring of 2023 Chair Woolridge and then-CAO Brian Reardon met with the Ministry of Urban Affairs in Victoria without prior board approval and did not report back to the board thereafter. An agenda obtained through an information request confirmed the meeting discussed North Westside governance amongst other issues of importance to Electoral Area West. The Carson asserts this meeting “killed” the initiative. Carson also notes NORD’s attempt to submit a grant application on its own was rejected because funding required a joint application with RDCO.

Alternative Measures and Political Maneuvering

To restart the process, Director Carson arranged a meeting involving NORD Chair Shirley Fowler, her CAO, RDCO Chair Woolridge, and RDCO’s new CAO, Sally Ginter. The Chair did not invite CAO Ginter to the meeting and did not to be aware that it had even happened. The group in attendance agreed the two CAOs would jointly develop a grant application for the governance study. Despite this, the RDCO Chair advanced an Electoral Area Services Committee—an option previously discussed and rejected by the governance committee—because critical North Westside Provincial services are predominantly delivered by NORD, not RDCO, and because the committee’s operational focus (meeting in Coldstream while the RDCO committee is in Kelowna) did not match the area’s needs.

Carson believes the committee was prioritized to secure a vote for Westbank First Nation (WFN) at the committee level, a longstanding issue as WFN has been seeking a board vote for 21 years. Carson points to an inclusive governance study costing $95,000 that was presented to the board; WFN reported no viable path forward from that study. Carson notes approximately 11,000 to 15,000 non-indigenous residents live on WFN lands and can vote and run in the electoral area, whereas electoral area residents cannot run for or vote on WFN positions—an asymmetry that remains unresolved.

Filing for Accountability: The Code of Conduct Process

Frustrated by the lack of movement, Director Carson filed a formal code of conduct complaint against Chair Wooldridge on July 15 under the Respectful Workplace Policy or Board Policy BP #1-2016 which was reviewed on September 7, 2023 when references to Board and Committee members were removed and addressed separately under Policy BP #16-2023 (Code of Conduct and REspectful Workplace: Board & Committees), which channels complaints against the chair through the vice chair. The vice chair acknowledged receipt the next day, but Carson reports no further action or communication despite multiple emailed inquiries. The corporate officer indicated her role was limited and that responsibility to advance the process lies with the vice chair. At UBCM, the speaker sought engagement again with the vice chair but received no substantive response during the conference.

In response to the continued inaction, Director Carson filed a second code of conduct complaint against Vice Chair Ireland for failing to perform his duties and allegedly stalling the process to the end of the term. Director Carson requested that the corporate officer submit both complaints to the full board, noting only one meeting remained. Director Carson argues the policy is deficient because it lacks a mandatory mechanism when the vice chair fails to act, and that an independent outside investigation—explicitly contemplated by the policy for cases that cannot be handled in-house—was warranted but blocked. The desired outcome included a full accounting of events, and apologies to the ministry, board, and community.

Election Implications and WFN Relations

The unresolved governance and accountability issues have become central to the election in Central Okanagan West and therefore central to the re-election campaign for Director Carson. Carson is running against two opponents, including a representative of the WFN Advisory Council, who can canvass 11,000 to 15,000 residents living on WFN lands. Carson alleges the regional district delivered a PowerPoint presentation at the WFN Advisory Council AGM (around February/March 2023) that was false or misleading, suggesting the regional director has a role in WFN local government affairs. The speaker asserts the regional director has no authority over WFN governance; WFN operates akin to a municipality under its Chief and Council.

The speaker supports granting WFN a vote at the regional board, asserting that full membership would improve advocacy with the province. However, the speaker warns that electing a representative from WFN lands under the misbelief that the electoral area seat represents WFN affairs would degrade relations and misalign expectations, given the electoral area’s lack of jurisdiction over WFN matters.

Institutional Failures and Path Forward

Director Carson emphasizes systemic breakdowns within RDCO processes. They characterize the respectful workplace/code of conduct policy as ineffective because there is no automatic enforcement if the vice chair does not act, and note that although board members were added to the policy’s scope in 2023, the process has yielded “crickets.” Carson believes resistance to governance changes is substantially motivated by RDCO’s desire to retain the North Westside’s strong tax base; he estimates the North Westside comprises over 70 percent of the population and assessed value within Electoral Area West.

Director Carson flags several imminent governance challenges at risk due to these institutional deficiencies: upcoming official community plans, the end of the short-term rental pilot project next year, and a $30 million water project for Killiney Beach and Westshores that the speaker seeks to cancel due to affordability concerns. Regardless of election outcomes, the speaker commits to pursuing an independent investigation to establish a factual account of the governance study’s derailment, contending the community deserves the truth and corrective engagement with the Ministry of Urban Affairs.

Action Items Needed for Resolution

• Vice Chair Ireland

  • Provide status update and formal next steps on the July 15 code of conduct complaint against Chair Woolridge - [TBD]

  • Initiate or commission an independent outside investigation into the code of conduct allegations per policy guidance - [TBD]

  • Respond to all pending emails from the complainant regarding process milestones and timelines - [TBD]

• Corporate Officer (Corey Griffiths)

  • Submit both code of conduct complaints (against Chair Woolridge and Vice Chair Ireland) to the full board for consideration, as requested - [TBD]

  • Clarify in writing the formal role and limits of the regional director in WFN local government affairs, addressing prior AGM presentation claims - [TBD]

• RDCO Board

  • Review and decide on the submission of both code of conduct complaints, including whether to appoint an independent investigator - [TBD]

  • Reassess the Electoral Area Services Committee’s remit and alignment with North Westside service delivery realities - [TBD]

• RDCO Chair (Woolridge)

  • Provide a documented account of the spring/March 2023 ministry meeting regarding North Westside governance, including agenda, approvals, and post-meeting reporting - [TBD]

  • Consider issuing apologies to the ministry, the board, and the affected community if misdirection or procedural breaches are substantiated by investigation outcomes - [TBD]

• NORD CAO / RDCO CAO (Sally Ginter)

  • Resume joint development of the grant application for the North Westside governance study, ensuring compliance with funding requirements - [TBD]

• Director Carson

  • Pursue an independent investigation route (outside RDCO leadership) if board-level processes fail or stall further - [TBD]

  • Communicate a factual report to the community on the governance study’s status and any verified findings from investigations - [TBD]

• Ministry of Urban Affairs

  • Confirm receipt of any RDCO/NORD governance study recommendations and clarify the basis for denying or pausing the initiative after the ministerial meeting - [TBD]

What specific evidence suggests the North Westside governance study was intentionally stalled?

• Unauthorized and Unreported Ministry Meeting: In the spring of 2023, a significant event occurred involving Chair Loyal Wooldridge and then-Chief Administrative Officer (CAO) Brian Reardon, who attended a meeting in Victoria that had not received prior approval from the governing board. This meeting, which was held with representatives from the ministry, raised serious concerns regarding governance practices and adherence to established protocols.1 The existence of this meeting came to light through the release of Freedom of Information (FOI) documents, which included an agenda that explicitly outlined the topics discussed. Among these topics was the governance of North Westside, a matter of considerable importance to the community and its stakeholders. Despite the critical nature of the discussions that took place, it is alarming to note that the meeting was never authorized by the board prior to its occurrence. Furthermore, there was a complete lack of communication regarding the outcomes of this meeting, as no report was provided back to the board or the community afterward. This situation not only raises questions about the decision-making processes within the organization but also highlights potential gaps in accountability and transparency that must be addressed. The implications of such unauthorized meetings can be far-reaching, potentially undermining trust in leadership and governance structures. Stakeholders, including community members, have a right to be informed about discussions that could impact their interests and the direction of governance in North Westside. As the board navigates these challenges, it is imperative to establish clearer guidelines and protocols for communication and decision-making to prevent similar occurrences in the future. Ensuring that all meetings, especially those involving external ministries, are properly authorized and reported will help to foster a culture of transparency and accountability that is essential for effective governance..

• Withheld FOI Materials: The Freedom of Information (FOI) response provided by the relevant authorities was notably incomplete, as it omitted several key documents that were explicitly requested. Among the missing materials were crucial agenda packages that are typically essential for understanding the context and decisions made during meetings. Additionally, the absence of notes from those meetings raises concerns about transparency and accountability, as these notes often contain insights into the discussions and deliberations that took place. Furthermore, the withheld emails, which were referenced in the response, suggest that there were communications relevant to the matters at hand that could shed light on the decision-making process. The existence of these materials, as indicated by references within the provided documents, points to a significant gap in the information shared with the requester. This lack of access to comprehensive documentation not only hinders public understanding but also raises questions about the adherence to FOI regulations and the commitment to openness by the organization in question. It is essential for the integrity of the FOI process that all relevant materials are disclosed, as this ensures that citizens can fully engage with and scrutinize governmental actions and policies.

• Rejection by the Ministry: Following the chair’s Victoria meeting, a subsequent 15-minute ministerial meeting with the Minister of Urban Affairs resulted in an outright refusal to move forward, which the speaker directly attributes to the chair's prior meeting undermining the initiative.

• Imposition of the Electoral Area Services Committee: The chair advanced the creation of an Electoral Area Services Committee despite it having been previously examined and rejected by the governance committee. The speaker asserts this was used as a workaround to establish committee-level voting for Westbank First Nation (WFN) rather than addressing North Westside governance issues.

Obstruction of the Code of Conduct Process:

• After Carson filed a formal code of conduct complaint against Chair Wooldridge on July 15, Vice Chair Ireland acknowledged receipt the next day but subsequently refused to respond to repeated emails or engage during encounters at the UBCM conference.

• Carson contends that the vice chair deliberately stalled the complaint process, essentially attempting to run out the clock on the current electoral term. This strategic delay is viewed as a calculated move to prevent an independent outside investigation from taking place, which could potentially uncover significant issues or misconduct. By prolonging the resolution of the complaint, the vice chair effectively ensures that any findings or repercussions would fall outside the current terms' jurisdiction, thereby shielding themselves and possibly others from accountability. This situation raises serious concerns about transparency and integrity within the electoral process, as it suggests a willingness to manipulate procedural timelines to avoid scrutiny. Furthermore, the implications of such actions could undermine public trust in the electoral system as a whole, leading to broader questions about governance and ethical standards among those in positions of power.