Last updated: March 2021

Under the PEI Municipal Government Act (MGA), which came into effect on December 23, 2017, the following services will be mandatory for all municipalities:

  • Fire protection
  • Municipal land use planning services, including official plans and bylaws; and
  • Emergency measures planning

In addition, it is a requirement that each municipality establishes and maintains regular office hours within 5 years of the Act coming into force. Further, the municipal offices must be open to serve the public for no less than 20 hours per week (MGA – Subsection 85(2) clause (b)).

An amendment to the MGA recently came into effect (Dec 4, 2020) that allows office sharing:

Page 48 Section 85 (3) Exception – shared office

Despite clause (1)(a), a council may designate a place outside the municipality as its municipal office where the office is shared with another municipality as its municipal office. 2016,c.44,s.85; 2020,c.76,s.11.

Given the small size of many municipalities on PEI, various options are actively being explored, including amalgamation, in order to meet the requirements of the MGA.

 
As a Councilor in the Rural Municipality of Warren Grove, the discussions around amalgamation seem to always go back to:
  • Land use planning –  Given our proximity to large population centers, there’s a likelihood that 10 years down the road this area will feel more urban than rural
  • Municipal Tax rates, how they could potentially increase even without the addition of services
  • Representation on the amalgamated Municipal Council 

 

I thought there might be some useful geographical information available on Island municipalities to better inform the discussion. Given that what I found seemed a bit piecemeal, and that I recently started learning how to create interactive maps using leaflet, I thought I would try and see what I could put together. 

The data presented in the maps below is for information purposes only.
Data has been pulled from the following sources:

 

MAP 1 – Census Divisions – 2016 Populations

 
I started with just mapping how many people live where using the census data. Mapping out the data gives a more intuitive sense of where people live, rather than just having populations presented as a list or in a table. 
 

 
Many of the PEI census division correspond to the 67 lots originally divided by Samuel Johannes Holland when he surveyed the Island over the winter of 1764-1765. Although there is an abundance information in the census, and Warren Grove is a census division, not all census divisions on PEI  line up with the recognized incorporated municipal boundaries. 
 

MAP 2 – Municipal Boundaries – Estimated 2016 Populations 

 
Given that not all census divisions align with municipal boundaries, provincial estimates listed by the FPEIM were used for the next map.

MAP 3 – MGA Requirements: Official Plan

 
The deadline for the Emergency Planning requirement has been extended due to the COVID-19 pandemic, so I did not bother looking for that information.  
 
I was also unsure about the accuracy of office hours listed for each municipality on individual websites or on the FPEIM municipal directory. 
 
One of the other requirements of the MGA is that each municipality provide land use planning, including official planning and bylaws. This information is already provided by the province as a static map PDF dated October 2020.  The following map indicates municipalities with official plans. 
 

MAP 4 – Amalgamation Scenarios 

 
To my reading and interpretation of the MGA, and the Principals, Standards and Criteria Regulations there is no indication that municipalities need to share a common border, or include a minimum border length for an amalgamation to be recognized. However, I don’t think a proposal to join two distant municipalities would be well received, nor is it likely to receive the Minister’s required approval.
 
I do think it can be fun to look at various scenarios that meet the criteria for the establishment of a new town, according to the MGA being:
 
“ an estimated population of more than 4,000 persons but not more than 14,999 persons, and a total property assessment value of more than $200,000,000 but not more than $749,999,999.”
 
Technically this could be met by the amalgamation of the Rural Municipalities of Warren Grove, Belfast, Malpeque Bay and Kingston for a total population of 4152 residents. It would only make sense to also annex a few unincorporated areas adjacent to each Belfast, Malpeque Bay and Kingston.  
 
In accordance with MGA 78.(1)(b) a bylaw could be passed authorizing the new town to have 8 councilors and a mayor, which would allow for 2 representatives from each Rural Municipality. 
 
Sure it might be a bit impractical in terms of resources and planning, but from a governance perspective virtual meetings are here to stay. 
 
The map below (modified from Leaflet-Select-Polygons, a Leaflet Plugin), allows you to click on municipalities to run through various scenarios. Municipal information listed includes: Population, Area, Official Plan Status and Municipal Tax Rate. 

The Tax Rate listed is the 2020 residential municipal tax rate for each $100 taxable value assessment. Numbers are rounded to 2 decimals and, for recently amalgamated municipalities the highest rate is listed.
 
This table, with some of the same information presented on the map, can be sorted by clicking on the table headings
 
Municipality Area (sq_km) Population Private Dwellings Density (per_sqkm) Official Plan Tax Rate
Rural Municipality of Belfast 230 1670 NDA 7.3 NO 0.15
Rural Municipality of Eastern Kings 143 709 NDA 4.95 YES 0.19
Rural Municipality of Central Prince 113 1112 NDA 9.8 NO 0.14
Rural Municipality of Lot 11 and Area 98 613 NDA 6.3 NO 0.19
Rural Municipality of Central Kings 74 339 NDA 4.6 NO 0.20
Rural Municipality of Kingston 48 1096 NDA 22.8 YES 0.15
Rural Municipality of North Shore 46 2080 NDA 45.2 SHARED 0.18
City of Charlottetown 44 36094 17193 814.1 YES 0.67
Rural Municipality of West River 120 3154 200 38.2 SHARED 0.13
Resort Municipality of Stanley Bridge, Hope River, Bayview, Cavendish and North Rustico 36 328 350 8.7 YES 0.20
Rural Municipality of Miltonvale Park 35 1148 493 32.4 YES 0.17
Rural Municipality of Annandale-Little Pond-Howe Bay 32 211 NDA 6.6 NO 0.12
Town of Cornwall 28 5348 2132 189.7 YES 0.46
City of Summerside 28 14829 6946 520.5 YES 0.74
Rural Municipality of Greenmount-Montrose 26 266 NDA 10.2 NO 0.12
Town of Stratford 23 9706 4097 430.8 YES 0.46
Rural Municipality of St. Nicholas 21 211 NDA 10.0 NO 0.20
Rural Municipality of Clyde River 16 653 270 39.5 NO 0.13
Rural Municipality of Hampshire 14 335 NDA 23.9 NO 0.10
Town of Borden-Carleton 13 724 376 55.7 YES 0.47
Rural Municipality of Breadalbane 13 167 76 13.3 NO 0.20
Rural Municipality of York 12 408 NDA 34 NO 0.17
Rural Municipality of North Wiltshire 12 189 NDA 15.75 NO 0.14
Rural Municipality of St. Felix 11 333 NDA 30.3 NO 0.09
Rural Municipality of Alexandra 10 221 NDA 22.1 NO 0.17
Rural Municipality of Warren Grove 10 356 140 35 YES 0.14
Rural Municipality of Union Road 10 204 79 20.5 YES 0.13
Rural Municipality of Brackley 9 372 148 42.3 YES 0.19
Rural Municipality of Sherbrooke 9 159 94 18 YES 0.35
Rural Municipality of Linkletter 8 310 136 34.1 YES 0.18
Rural Municipality of Hazelbrook 8 183 NDA 22.9 YES 0.21
Rural Municipality of Darlington 8 91 NDA 11.4 NO 0.09
Rural Municipality of Souris West 8 399 NDA 49.9 NO 0.09
Rural Municipality of Hunter River 6 356 164 59.7 NO 0.40
Town of Tignish 6 719 334 122.4 YES 0.65
Town of Alberton 5 1145 554 253.5 YES 0.56
Rural Municipality of St. Peters 4 237 127 55.4 NO 0.40
Rural Municipality of Kinkora 4 336 154 87.9 YES 0.55
Town of Souris 4 1053 529 303.7 YES 0.70
Rural Municipality of Murray Harbour 4 258 177 66.3 NO 0.54
Rural Municipality of Miscouche 4 873 372 253.2 YES 0.45
Town of Kensington 3 1619 781 537.8 YES 0.55
Town of North Rustico 3 607 344 251.8 YES 0.65
Rural Municipality of Crapaud 2 319 133 148.4 NO 0.50
Rural Municipality of Tyne Valley 2 249 105 144.4 NO 0.35
Rural Municipality of Miminegash 2 148 72 77.7 NO 0.35
Rural Municipality of Murray River 2 304 182 207.3 NO 0.48
Rural Municipality of Northport 2 186 NDA 93 NO 0.35
Rural Municipality of Wellington 2 415 176 233.3 YES 0.49
Town of O’Leary 2 815 387 483.7 YES 0.79
Rural Municipality of Mount Stewart 1 209 114 170.7 NO 0.81
Rural Municipality of Tignish Shore 1 57 NDA 57 NO 0.60
Rural Municipality of Victoria 2 74 64 50.8 YES 0.45
Rural Municipality of Abram-Village 1 272 121 215.6 YES 0.30
Rural Municipality of Morell 2 297 137 203.2 NO 0.62
Rural Municipality of St. Louis 1 66 36 106.1 NO 0.30
Rural Municipality of Bedeque and Area 3 302 128 119.2 NO 0.30
Rural Municipality of Malpeque Bay 97 1030 NDA 10.6 NO 0.08
Town of Three Rivers 429 7181 NDA 16.7 SHARED 0.18