Strong Mayors, Building Homes Act, 2022: Transforming Municipal Governance in Ontario
In September 2022, the Legislative Assembly of Ontario passed the Strong Mayors, Building Homes Act (S.O. 2022, c. 18). This significant piece of legislation fundamentally altered the balance of power within municipal governments across the province, moving several jurisdictions away from a traditional "weak-mayor" system toward a more centralized "strong-mayor" model.
By granting specific heads of council expanded authorities, the Act aims to streamline decision-making processes, particularly regarding housing and provincial priorities. While the legislation has provided mayors with unprecedented tools to drive local agendas, it has also sparked intense debate regarding democratic norms and provincial oversight.
Key Facts
- Purpose: To grant extra powers and duties to the mayors of designated municipalities.
- Core Shift: Transitions municipalities from a "weak-mayor" system to a "strong-mayor" system.
- Key Powers: Includes control over city budgets, appointment of department leaders, and veto power over certain by-laws.
- Scope: Initially applied to Toronto and Ottawa; as of June 2026, 215 of Ontario's 443 municipalities are designated.
- Legislative Evolution: Expanded by the Better Municipal Governance Act, 2022 and the Better Regional Governance Act, 2026.
From Weak-Mayor to Strong-Mayor Systems
Historically, most Ontario mayors operated under a weak-mayor system. In this framework, the mayor's role was largely ceremonial or administrative, such as chairing council meetings and appointing committee chairs. Crucially, the mayor lacked unilateral authority; all significant decisions required a majority vote from the council to pass.
The 2022 Act allows the provincial government to designate specific municipalities to adopt an alternative strong-mayor system. Under this new structure, the mayor is granted direct control over several critical administrative and financial functions.
New Executive Authorities
Mayors in designated municipalities now hold direct authority over the following areas:
- Budget Drafting: The ability to lead the drafting of city budgets, a task previously handled by council committees.
- Personnel Management: The power to appoint and dismiss city managers and department leaders (though this excludes police chiefs, fire chiefs, and auditors general).
- Administrative Reorganization: Authority over the creation, dissolution, and reorganization of municipal departments.
- Veto Power: The ability to veto by-laws that conflict with provincial priorities. To override this veto, the council must achieve a two-thirds supermajority vote.
Legislative Expansion and Regional Governance
The scope of these powers has grown through subsequent provincial legislation. The Better Municipal Governance Act, 2022 introduced the ability for a mayor to pass a by-law with only one-third support of the council, provided the by-law relates to defined provincial priorities.
In 2026, the Better Regional Governance Act further extended these concepts to upper-tier municipalities through a "strong chair" arrangement. A notable change in this expansion was the shift in how regional chairs are selected; in some areas, such as Durham, the province moved to appoint regional chairs rather than holding direct elections.
Summary of Governance Changes
| Feature | Traditional (Weak-Mayor) | Strong-Mayor System |
|---|---|---|
| Budget Control | Council Committees | Directly by Mayor |
| Department Heads | Council Approval | Appointed/Dismissed by Mayor |
| By-law Veto | Not Applicable | Mayor can veto (requires 2/3 override) |
| Minority Rule | Majority Vote Required | 1/3 support possible for provincial priorities |
Public and Political Reactions
The Act has been met with a polarized response from political leaders and experts. Supporters, including former Toronto Mayor John Tory and the provincial government, have argued that the powers reflect the "city-wide mandate" held by mayors who receive more votes than individual councilors.
Conversely, critics have raised concerns about the erosion of local democracy. Several former Toronto mayors—including David Crombie and David Miller—described the powers as an "attack" on majority rule. Political experts have also pointed out that the mechanism allowing laws to pass with only one-third support is highly unusual in established democracies. In Ottawa, former mayor Jim Watson characterized the requirement of a two-thirds supermajority to overturn a mayor's decision as undemocratic.
Frequently Asked Questions
How does the veto power work for a strong mayor?
A strong mayor can veto by-laws that conflict with priorities set by the provincial government. For the council to bypass this veto and pass the by-law anyway, they must secure a two-thirds supermajority vote.
Can the province revoke strong-mayor powers?
For municipalities other than Toronto, the designation is made via Order-in-Council and can be granted or revoked by the provincial government at will. In Toronto, however, these powers are defined in the City of Toronto Act and can only be revoked by an Act of Provincial Parliament.
Which municipal leaders are exempt from the mayor's appointment powers?
While mayors can appoint and dismiss most department leaders, they do not have direct authority over police chiefs, fire chiefs, or auditors general.
What is a "strong chair"?
Introduced via the Better Regional Governance Act, 2026, a "strong chair" refers to an expanded version of the system applied to upper-tier municipalities, where regional chairs may be appointed by the province rather than directly elected.
Has the one-third support rule been used?
Yes. In October 2023, then-Mississauga Mayor Bonnie Crombie invoked the power to pass a by-law permitting the construction of fourplexes with minority support.