The Role of Levels of Service in Municipal Decision-Making

In municipal operations, delivering essential services efficiently and sustainably is the foundation of building resilient communities. But how do municipalities measure how well they are performing? How do they set goals and determine whether they are meeting the needs of their residents? The answer lies in Levels of Service (LOS). This framework helps municipalities define, measure, and achieve the standards at which services are delivered, shaping both immediate priorities and long-term strategies.

What Are Levels of Service (LOS)?

At its core, Levels of Service (LOS) describe the standard at which a municipality provides its services. LOS is not about focusing on one aspect, such as reliability or safety, but about taking a holistic view of service provision. It involves:

Defining measurable targets for performance.

Measurable targets provide clarity and focus for municipalities when setting Levels of Service. These targets should be specific, actionable, and aligned with community priorities. For example, instead of a vague goal like “improve water quality,” a measurable target might be: “Ensure that 95% of water quality tests meet provincial regulatory standards by the end of the year.” Municipalities can use industry standards, historical performance data, and stakeholder input to determine realistic and meaningful targets. Additionally, tools like SMART criteria (Specific, Measurable, Achievable, Relevant, Time-bound) can help ensure that targets are both achievable and impactful.

Developing strategies to meet these targets.

Meeting LOS targets requires a combination of operational efficiency, infrastructure investments, and proactive planning. For instance, if a municipality sets a target of reducing water main breaks by 20% over five years, the strategy could include implementing a preventative maintenance program, prioritizing asset renewals based on condition assessments, and upgrading critical infrastructure. Other strategies might involve training staff to improve operational practices, adopting technology like remote monitoring systems, or seeking funding through grants to support key projects. A well-defined strategy links specific actions to the desired outcomes, ensuring progress is deliberate and measurable.

Sustaining service provision in a cost-effective manner.

Cost-effectiveness is critical for municipalities with limited budgets. Sustaining services over the long term requires finding a balance between maintenance, operations, and capital investments. Preventative maintenance, for example, is often far more cost-effective than reacting to failures. Municipalities can also use prioritization frameworks, such as risk-based assessments, to allocate resources where they will have the greatest impact. For instance, focusing on high-risk assets or critical infrastructure can prevent costly service disruptions. Furthermore, collaboration with regional partners or leveraging economies of scale (e.g., joint procurement of materials or services) can help stretch budgets without compromising service quality.

Finding opportunities to exceed user expectations.

Exceeding expectations involves identifying areas where municipalities can enhance service delivery in ways that are visible and meaningful to the public. For example, adding online tools for residents to track water usage or report service issues could improve user satisfaction. Similarly, accelerating response times for service outages or introducing environmentally sustainable practices, like water conservation incentives, might resonate strongly with residents. Regularly engaging with the community through surveys, forums, or focus groups can reveal new opportunities to deliver added value. By going beyond the baseline LOS targets, municipalities can build trust, enhance their reputation, and foster a stronger connection with the community.

For example, LOS metrics could include maintaining reliable water service, ensuring roads are accessible year-round, or providing sufficient wastewater treatment capacity to meet environmental regulations. By setting and tracking these standards, municipalities gain clarity on what needs to be prioritized, how to allocate resources effectively, and how to adapt to future challenges.

Examples of LOS in Action

Levels of Service can vary in scope and complexity depending on the service area. Let’s compare two examples to illustrate how LOS can guide both long-term and short-term decision-making:

1. Safety: Ensuring Water Supply for Firefighting Purposes

This LOS focuses on the ability of the municipal water system to support firefighting efforts. For many municipalities, achieving this goal requires significant investment, such as replacing undersized water mains or constructing new facilities to increase water storage and pressure. These efforts may span several years or even decades, particularly for municipalities with aging infrastructure. While this is a critical LOS, it’s a long-term commitment that requires detailed planning, phased execution, and collaboration across multiple stakeholders.

2. Reliability: Minimizing Service Outages

In contrast, this LOS addresses the frequency and duration of service disruptions, such as interruptions in water delivery or wastewater collection. Unlike the firefighting example, this goal can often be achieved in the shorter term through proactive measures like preventive maintenance, operational adjustments, or minor upgrades. For example, regularly inspecting valves and pumps in a water distribution system can significantly reduce unplanned outages and improve service reliability. These “quick wins” help municipalities demonstrate tangible results while working toward larger, long-term objectives.

Both examples highlight how LOS can drive decision-making, whether by setting ambitious goals for the future or identifying immediate actions that improve service delivery today.

How to Define Levels of Service

For municipalities new to LOS, developing these standards may seem overwhelming. However, breaking the process into manageable steps can make it more approachable. Here’s a step-by-step guide:

Step 1: Assess Current Performance

Start by understanding how well your municipality is currently delivering services. Use available data to measure performance against existing benchmarks or industry standards. For example:

• Are water systems consistently meeting regulatory quality standards?
• How many service outages have occurred in the past year, and how long did they last?

Step 2: Engage Stakeholders

Involve key stakeholders—municipal staff, council members, and even the public—to ensure your LOS priorities align with community needs. Residents might highlight issues, such as road conditions or water pressure, that are not immediately apparent from internal assessments. Stakeholder input helps create a shared vision and builds buy-in for LOS initiatives.

Step 3: Define Metrics and Targets

Translate the feedback and data into measurable metrics. Be specific about what you want to achieve. For instance:

• Safety: “100% of the water distribution network meets firefighting flow requirements by 2035.”

• Reliability: “Fewer than two service outages per year, each lasting less than four hours.”

Step 4: Prioritize Actions

Once metrics are set, identify the actions needed to achieve them. Categorize these actions by urgency and resource requirements. Short-term actions, like valve maintenance, may require less funding but have an immediate impact, while long-term goals, like upsizing mains, might require phased investments.

Step 5: Monitor and Adjust

Regularly review progress toward your LOS targets. Use the data to identify trends, evaluate the effectiveness of strategies, and make adjustments as needed. Monitoring also ensures accountability and transparency for both municipal staff and residents.

Tips for Small Municipalities

Small municipalities often face limited resources, making it challenging to define and achieve LOS. Here are some practical tips:

• Start Small: Focus on one or two critical service areas, such as water reliability or road accessibility, before expanding to others.
• Leverage Partnerships: Collaborate with regional organizations, consultants, or neighboring municipalities to share knowledge and resources.
• Use Simple Tools: Start with spreadsheets or templates to track performance before investing in advanced software systems.
• Seek Funding Opportunities: Look for grants or subsidies that support infrastructure upgrades tied to LOS goals.
• Be Realistic: Set achievable targets that reflect your current capacity while laying the groundwork for long-term improvements.

Why LOS Matters

Defining Levels of Service is not just a bureaucratic exercise; it’s a powerful tool for decision-making. By clearly articulating what a municipality aims to achieve, LOS provides:

• Clarity: Municipal staff and stakeholders have a shared understanding of service priorities.
• Accountability: Progress can be tracked and reported transparently.
• Efficiency: Resources are allocated where they will have the greatest impact.
• Resilience: Long-term planning helps municipalities adapt to changing circumstances, such as population growth or climate impacts.

Your Call to Action

How are Levels of Service shaping decision-making in your municipality? Are there challenges you’ve faced in defining or achieving LOS targets? Share your experiences—I’d love to hear your thoughts and continue the conversation.

Reach out to me:

• Phone: 204-384-7754
• Email: chad@buhlinam.ca
• LinkedIn: Chad Buhlin

Let’s work together to build sustainable, resilient municipalities through clear and actionable Levels of Service.