Tag: plans

Transforming Edmonton: Shifting our focus from plans to implementation

Toward the end of 2006, the City of Edmonton started to look at refreshing its visioning and planning efforts. A number of major City plans were about to be renewed, including the Municipal Development Plan, the Capital City Downtown Plan, and the Transportation Master Plan. Administration explained the importance of these reports in an update to Council:

Major plans are plans of city-wide or corporate-wide significance.  Major plans act as foundation blocks for Administration decisions and recommendations to City Council.  They are also a fundamental building block for future Council decisions.  These plans are meant to be in place for multiple years, and the review of these plans takes significant time and resources by both Administration and Council.

A report published in early 2007 provided a more detailed update and proposed a method for developing a “Vision for the City of Edmonton” that would kick off a full planning cycle. The report also included a Strategic Planning Brief. Here’s a look at the proposed strategic development cycle:

And here’s a look at the proposed framework process:

Writing in the Edmonton Journal about public information sessions held by the City in October 2008, Todd Babiak noted:

This process, which also includes the City Vision for 2040, the 10-year strategic plan, the Ecovision, and the plan for downtown, is broadly called "Transforming Edmonton." We’re admitting, as a people, that we have made expensive and dangerous mistakes for a generation or so.

Mary Ann McConnell-Boehm, who managed the Municipal Development Plan at the time, said:

"This is what we heard from our stakeholders in 2006, about the direction they wanted our city to take. A different approach, more integrated, a little braver."

That more integrated process ultimately led to the creation of the City Vision, the City’s Strategic Plan for 2009-2018 known as The Way Ahead, and the associated “Ways” plans:

Many Edmontonians have noted that the last plan to be approved, The Way We Finance, is the one that’s supposed to help us pay for the rest! Still, when its approval finally happens later this year, it’ll bring the most ambitious planning cycle in the City of Edmonton’s history to a close.

There were previous efforts at establishing a city-wide vision of course, such as the “Smart City” initiative of the late 90s, but none stuck. Why did Transforming Edmonton succeed at getting off the ground when other initiatives had failed? I think a big reason was Mayor Mandel. After winning re-election in October 2007, Mayor Mandel told the Edmonton Journal:

“The vision we have is of Edmonton being a city of the world. A city that is vibrant, environmentally sensitive and attractive. And a city that cares about people and opens its arms to them, wherever they came from.”

The importance of Mandel’s victory did not go unnoticed by the Edmonton Journal’s Scott McKeen, who wrote:

Mandel’s win, though hardly a surprise, was much more than a ho- hum victory over the fringers, fanatics and languid Koziaks who ran against him.

His approval rating on Monday narrates a turning point in Edmonton’s history. If Mandel’s first term stood for anything, it was a shift away from historic nickel-and-dime civic politics.

Edmontonians, it seems, embrace Mandel’s big-city vision.

The success or failure of an effort as broad and ambitious as Transforming Edmonton cannot be attributed to one person of course, but under Mayor Mandel’s watch, the City became a bit more integrated and much more strategic.

Edmonton’s efforts at improving the visioning and planning process are not unique. Vancouver’s CityPlan was adopted in 1995 and is slated to come to a close in 2015 (to be replaced with Green Vancouver, I think). Toronto’s Strategic Plan was approved in three stages from 1999-2001. Ottawa adopted its Official Plan in 2003 to guide the city through 2021. Montreal’s Master Plan was adopted in 2004. Calgary adopted imagineCALGARY in 2006, which sets out a 100 year vision with targets every 30 years. Winnipeg replaced its previous Plan Winnipeg 2020 initiative with OurWinnipeg in 2011, presenting a 25-year vision for the city. Long-term planning seems to be the norm for Canada’s major cities.

Today nearly every aspect of the City of Edmonton’s operations have been affected by Transforming Edmonton. For example, every budget item references one of “The Ways” and/or the strategic goals, and internal structures have changed to match the new approach. We’ve also seen efforts to describe progress, such as the new Citizen Dashboard.

While some implementation has occurred, the focus of the last five years has unquestionably been on the creation of Transforming Edmonton’s plans and associated documents. The approval of the final major plan, not to mention the expected retirement of Mayor Mandel next week and April’s unofficial kickoff of campaigning for the October municipal election, should signal a shift toward more concerted implementation efforts.

A shift in focus from planning to implementation won’t just happen, however. Edmontonians need to demand it. We as citizens need to do a better job of asking how things are going, not just how things are going to be.

Horse Hill ASP: More proof that Edmonton is addicted to sprawl

The proposed Horse Hill Area Structure Plan (ASP) will be debated at a special public hearing on Monday and Tuesday. Known as bylaw 16353, the Horse Hill ASP outlines a development framework for the area east of the Edmonton Energy & Technology Park (EETP). It encompasses roughly 2,806 hectares of land and barely meets the density target of the Capital Region Growth Plan with a proposed density of 31 units per net residential hectare based on a proposed population of about 71,000 people. Proponents would like to see the area developed over the next 30-40 years.

 
Horse Hill ASP, click for a larger version

There are many people opposed to the plan, including over 2100 who have signed an online petition asking Council to “get full information about the true costs and benefits of this current plan and alternative development scenarios”. Some are concerned with the loss of agricultural land, and others are concerned with the unsustainable sprawl of our city. I expect we’ll hear a lot from those perspectives during the public hearing. I wrote about this battle last July and I would encourage you to read or re-read that post for background.

After the public hearing has completed, the bylaw will be ready for first and second reading. Third reading will take place after the Capital Region Board has given its approval of the plan. It’s important to remember where we are in the larger process:

An ASP is a relatively high-level document. It contains more detail than the Municipal Development Plan, but less than the Neighbourhood Structure Plans (NSP). The Horse Hill ASP proposes five neighbourhoods, each of which would require an NSP.

The Horse Hill ASP falls into the Northeast Urban Growth Area, one of three identified in the Municipal Development Plan. Preparation of ASPs for these areas was authorized along with the MDP, but approval was dependent on Council accepting the Growth Coordination Strategy (GCS), the Integrated Infrastructure Management Plan (IIMP), and the City-Wide Food and Agriculture Strategy. Technically all three documents were approved in 2012, but they were not received without criticism. I wrote about some of my concerns with the documents here, here, and here. Furthermore, it’s hard to swallow that the Horse Hill ASP has been developed in adherence with those plans, considering that the Growth Coordination Committee and the Annual Growth Monitoring Report do not yet exist. Both were identified as key methods by which the GCS would be implemented.

At 135 pages, the bylaw, application, and supporting documentation for the Horse Hill ASP contains lots of information (PDF, 15.8 MB). I have slowly been digesting it, and I was particularly interested in the IIMP document that was included as attachment 2c (on pages 113-135). This is the first time such a document has been prepared for Council’s consideration.

From the background section of the IIMP:

The challenges facing the City are to balance development costs with the strategic benefits of sustainable growth, to achieve an appropriate balance of residential to commercial/industrial development. Although the City of Edmonton has achieved some success in diversifying its revenue base, property tax remains the largest component of City revenue.

The IIMP estimates that roughly $2.5 billion worth of infrastructure will need to be built, with developers contributing 66% and the City contributing 34%. The GCS reminds us however that “the City assumes ownership of developer funded infrastructure, generally two years after construction, and is responsible for ongoing maintenance, periodic rehabilitation, and eventual replacement.”

To estimate revenue and expenditures, the IIMP considers two scenarios. The first uses demographic projections from 2008 and assumes that only 52% of the population is achieved within 50 years. The second uses demographic projections from 2012 and assumes that the full population is achieved within 35 years.

Here’s the revenue vs. expenditures for the first scenario:

Here’s the revenue vs. expenditures for the second scenario:

The first takeaway is that new neighbourhoods do not pay for themselves, even (and especially) in the long-run. The IIMP notes that in comparison those charts “seem to contradict the general theory that a faster build-out time would result in a better cost recovery ratio.” It goes on to attribute this paradox to “the timing of certain large capital assets.”

What follows those two charts is a discussion about the balance of residential and non-residential land throughout the city. The IIMP notes that non-residential assessment makes up approximately 25% of the total tax base of the City.

How does the proposed development affect this balance? Generally, residential neighbourhoods have less than 25% of their assessment base as non-residential, and the proposed Horse Hill Area Structure Plan is projected to have 4.3% of its assessment as non-residential. So as the City grows this and other residential areas, it must also grow its non-residential areas to maintain balanced growth.

Incredibly, the IIMP then provides updated versions of the two charts above that “illustrate the importance of balanced growth and the benefit of maintaining the current non-residential assessment ratio.” The estimated revenue is combined with “off-site commercial assessment” to paint a much rosier picture of how we can afford to build out the plan as proposed.

Here’s the updated chart for the first scenario:

And here’s the updated chart for the second scenario:

The IIMP states:

The premise in these figures is that if the City maintains its current balance of 25% non-residential assessment, by developing commercial areas throughout the City, this additional revenue helps to offset the fiscal imbalance indicated by looking at the Horse Hill ASP by itself.

So we need to continue building commercial areas like the EETP to prevent residential taxes from going up dramatically. But to support those commercial areas we need to build new residential areas like the one proposed by the Horse Hill ASP. But to pay for those new residential neighbourhoods, we need to construct still more commercial areas. It’s a vicious cycle.

In other words, we’re addicted to sprawl.

The worst part is that we know this and yet we continually fail to do anything about it. From the MDP:

The Municipal Development Plan proposes a new direction for growth and it will take time to effect change. The Plan is a long term strategy and will require incremental decisions that support our commitment to saying “yes” to the things we want and need and “no” to the things that do not advance our City Vision and goals.

So far we’ve said “yes” to eight NSPs that were supposed to wait for the GCS and other documents, “yes” to a dramatically scaled back Growth Coordination Strategy, “yes” to a Food & Agriculture Strategy that lacks teeth, and we’ll likely say “yes” to the Horse Hill ASP.

We’re addicted to sprawl and we just can’t seem to say “no”.

What good are (bike) plans without implementation?

Bike lanes have been in the news again, largely thanks to Mayor Mandel referring to the plans as a “nightmare” on Wednesday. It’s pretty clear that our poor public consultation practices are part of the problem here, but there’s another issue at play. As a city we’re good at talking the talk, but we too often fail at walking the walk.

From The Way Ahead:

In shifting Edmonton’s transportation modes the City recognizes the importance of mobility shifts to contribute to the achievement of other related goals. To do so suggests the need to transform the mix of transport modes, with emphasis on road use for goods movement and transiting people and transit use for moving people.

From The Way We Move’s Strategic Goals:

Public transportation and active transportation are the preferred choice for more people, making it possible for the transportation system to move more people more efficiently in fewer vehicles.

From The Way We Move’s Implementation Plan:

Active transportation includes any form of human-powered transportation, the most common modes being walking and biking. A key direction of The Way We Move is to develop an integrated and sustainable transportation system in Edmonton to enable citizens to shift to these modes.

And then of course there is the Active Transportation Policy which declares, “the City of Edmonton strives to be pedestrian- and bicycle-friendly.”

Our plans and goals and policies all seem to support taking steps to make cycling in Edmonton more common. We know that doing so will help to reduce traffic congestion, preserve our road infrastructure, protect the environment, and make us healthier. Our goal of building 500 km of on-street cycling facilities in the next 10 to 20 years is achievable, and we can be confident it’ll help shift our transportation modes because just as you get more drivers when you add more roads, research suggests you get more cyclists if you add more bike lanes (pdf).

So why does it seem so difficult to make any actual progress?

Isaak Kornelsen Memorial Ride - August 31, 2012

When the 2012-2014 Capital Budget was being discussed, Active Transportation nearly missed out on funding. After lots of public feedback and discussion, Council amended the budget and did include $20 million. Now we get around to actually spending some of that money on cycling – $2 million or less this year – and we once again seem to be forced into the position of having to fight to move things forward. One step forward, two steps backward.

Without question the way the City does public consultation contributed to this mess – there’s a lot of room for improvement. But “poor public consultation” is also a convenient scapegoat for politicians and citizens opposed to the plans. There’s no conspiracy here. The notion of adding bike lanes to our streets didn’t suddenly appear one day out of thin air. These plans have been in the works for years.

All we need to do now is walk the walk.

You can learn more about Cycling in Edmonton here, and note the City is running a survey on the 2013 Bike Routes until February 27.

Two other thoughts:

  • Why wasn’t there any outrage about the loss of parking when the bike parking corrals were put in place over the summer? Was it just because they were temporary?
  • Am I the only one annoyed that we’re spending 10 to 30 times more on a “mechanized access” project for the River Valley that has no clear plan than we are on bike lanes?

Upcoming public involvement opportunities!

It really feels like this is an unprecedented time for the City of Edmonton – there are so many projects and plans underway that it’s hard to keep track of them all! But that’s a post for another day. For now, here are some upcoming public involvement opportunities you should know about.

Help Create a Vision for Queen Elizabeth Park

“Queen Elizabeth Park has been a well-loved destination park for Edmontonians for almost a century. Given all the planned improvements in the area, including the new Walterdale Bridge and the repurposing of the Rossdale Power Plant, in addition to the demolition of the old Queen Elizabeth Pool, the time is ripe to re-imagine what this park means to us and to explore options for its future.”

There’s an idea gathering workshop scheduled for April 18 from 6:30pm to 8:30pm at the Old Timers’ Cabin. See full details at ShareEdmonton.

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Complete Streets: Give us your feedback!

“Complete Streets is a concept. It’s a City of Edmonton initiative that acknowledges a simple truth: when it comes to roads, one size doesn’t fit all.”

This is an online opportunity. Share your thoughts here by April 16.

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Survey on Sanitary Utility Rate structure

“The City of Edmonton’s Drainage Services is considering changes to the Sanitary Utility Rate structure. Edmontonians are encouraged to share their thoughts and opinions by completing an on-line survey by April 9, 2012.”

This is an online opportunity. Share your thoughts here by April 9.

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Survey on the Urban Traffic Noise Policy (UTNP)

“Since the UTNP was last updated in 2004, it’s time to review the policy and assess the public’s perceptions and opinions on the impact of traffic noise. Public feedback will be included in a revised policy, which will go before City Council in June 2012.”

This is an online opportunity. The survey will be available here soon and will be open until April 20.

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Northwest LRT Open House

“The public is invited to participate in the kickoff open house for the Northwest LRT project. City staff will outline the project scope and process for evaluation of the Northwest LRT corridor. Participants will be asked to identify issues and opportunities for the project going forward.”

There’s an open house coming up on April 10 from 4pm to 8pm at the Calder Community Hall. See full details at ShareEdmonton.

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Southeast to West LRT Community Conversations

“Public Involvement for this phase will include all 27 km of the line. As this is a large area and stakeholders will have specific interests and concerns, the study area has been broken into six consultation areas. Though information sharing and consultation on the entire 27 km will be a part of every meeting in every area, each meeting will be tailored to the specific area it’s in.”

There are three events still to take place. Strathearn to City Centre West will be discussed on April 11, City Centre West to 149 Street will be discussed on April 24, and 149 Street to Lewis Farms Transit Centre will be discussed on April 26.

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The Way We Green Speaker Series 2012

“The Way We Green project is the City’s consultation with Edmontonians to develop a long-term environmental strategy for a sustainable community.”

The next event is scheduled for April 11 during the lunch hour at the Art Gallery of Alberta. See full details at ShareEdmonton. Additional events are scheduled for May 9 and June 5.

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The Way We Prosper

“The City of Edmonton is preparing The Way We Prosper, a comprehensive economic development strategy for the city. The strategy is one of the six “Ways” – the 10-year strategic goals identified in the City’s strategic plan The Way Ahead that will help to set direction, guide decisions and align the priorities for transforming Edmonton’s future.”

There’s an economic development workshop scheduled for April 30 from 1pm to 4:30pm at the Shaw Conference Centre. See full details at ShareEdmonton. The City has already been holding focus groups on this plan, and I’m sure additional events will be held in the future.

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Other

You might also want to read about the plans for the 2012 construction season. More than $122 million is being invested in projects to enhance Edmonton’s transportation infrastructure. In particular, take note of detours on Jasper Avenue related to the Central Station LRT Rehabilitation.

Oh, and don’t forget that census workers are hitting the streets for the 2012 Municipal Census. Legitimate census workers will have proper identification, they will not ask you for your name or phone number, and they most definitely will not ask to use your computer.

To keep up-to-date on public involvement events, check out the public involvement tag at ShareEdmonton.

Mayor’s Arts Visioning Committee releases recommendations for raising the profile of arts in Edmonton

arts visioningAfter eight months of consultation and hard work, the Mayor’s Arts Visioning Committee has released 12 recommendations that aim to raise Edmonton’s profile as an arts and culture hub. The City’s existing 10-year-plan, The Art of Living, provided the foundation for the committee’s work. From today’s news release:

“The committee has done a tremendous job reaching out to the community, narrowing down a wide range of ideas to come up with this list of recommendations,” said Mayor Stephen Mandel. “Their efforts show how we can work together as a community to raise the profile of arts in our city. Arts is an economic sector as well as a part of our everyday experience as Edmontonians. These recommendations provide a good place from which to start a dialogue about how we can move forward.”

The committee was co-chaired by Dianne Kipnes and Brian Webb. The first major event was held on June 21, an initial “Think Tank” that brought hundreds of Edmontonians together to brainstorm ideas and opportunities. I was fortunate enough to take part in that event, and was delighted to see so many people with such passion for the arts in Edmonton. Over the summer, a number of smaller consultation events took place. The second “Think Tank” was held on October 28. We were presented with preliminary recommendations and tasked with providing feedback. Since then, the committee has been finalizing the report.

You can download The Art of Living in PDF here, and the Arts Visioning Committee’s final report in PDF here.

Here are the 12 recommendations:

  1. MacEwan Centre for the Arts: The City of Edmonton acquire and convert MacEwan University’s west campus, the Centre for the Arts and Communications, into a multi-use, multicultural and City operated arts incubator.
  2. Rossdale Plant Redevelopment: The City of Edmonton develop the former power plant site into a landmark cultural and commercial complex on the banks of the North Saskatchewan River which must include a premier Aboriginal arts and cultural celebration centre, as well as studio, exhibit and performance space for Edmonton artists.
  3. Downtown Arts District and Performance Centre: The City of Edmonton endorse, in principle, a landmark performing arts centre (PAC) downtown, and designate land for such a development in the city core.
  4. Arts Capital Allocation: The City of Edmonton establish a capital allocation under the civic capital budget in anticipation of future opportunities to establish, enhance or acquire arts space of all types.
  5. Community Centres: The City of Edmonton create and sustain arts spaces within existing and future community recreation centres and other community spaces for creation, classes, exhibits and performance.
  6. Arts Sustainability Fund: Private and government partners establish an Edmonton Arts Sustainability Fund for small and mid-sized arts organizations to help finance business development.
  7. Arts Central: A community-led initiative, modeled after Sports Central, be supported by the City of Edmonton, to supply materials, equipment, and program support for disadavantaged and disconnected Edmontonians to pursue arts experiences.
  8. Arts and Culture Vision in City Administration: The City Manager and Edmonton Arts Council leadership develop a strategy to embed a broad vision of the arts into city planning and decision making.
  9. Multicultural Arts Outreach: The City of Edmonton increase capacity for the Edmonton Arts Council to strengthen proactive outreach programs to ensure diverse communities are engaged in decision-making throughout the city’s arts organizations and increase participation across the city.
  10. Arts in Education: The City of Edmonton takes a leadership role to invite a coalition of business, civic and community groups to strongly advocate for increased funding and emphasis on arts education in Edmonton schools and post-secondary institutions.
  11. Artists in Residence Program: The City of Edmonton and business partners increase support and awareness of the Edmonton Arts Council’s “Artist in Residence” program to enhance in-house opportunities and collaboration for artists with local businesses.
  12. Business and Arts Advisory Council: Corporate and arts community members establish a business and arts advisory committee to work with the Edmonton Arts Council to build on the 2040 arts vision and link the two communities with shared expertise, resources and ideas.

I think it is important to look further ahead, but as we all know, it’s easy to make a plan and much harder to execute on it. There’s a lot of work to do to bring these recommendations forward!

Some of these recommendations should come as no surprise. The Rossdale Plant Redevelopment was going to happen with or without this report, for instance, but specifically including arts and culture in the plans certainly makes sense. I think the Community Centres recommendation is an obvious one, and actually am a little surprised that we don’t already include space for the arts in mega-complexes like the Terwillegar Recreation Centre. I’m less excited about the Arts Capital Allocation, because I think we should leave capital funding decisions up to the Council of the day, to decide on what they think is most important for the city at the time. All the recommendations are worth considering, however.

The next step for these recommendations is for Mayor Mandel to submit them to City Council for consideration. In the meantime, save the date for the 25th Annual Mayor’s Celebration of the Arts: April 2, 2012. Nominations are now being accepted!