Planning Manitoba's Capital Region: Next Steps

PLANNING MANITOBA’S CAPITAL REGION NEXT STEPS

Manitoba Intergovernmental Affairs January 2001 PLANNING MANITOBA’S CAPITAL REGION: NEXT STEPS

EXECUTIVE SUMMARY

The Government of Manitoba has a strong commitment to the Capital Region. The Province has responsibility for land management, municipal government, resources and the environment. It also contributes financially to infrastructure, educational and health services, some municipal services, and a number of economic development initiatives. Ensuring a safe, healthy, prosperous and efficient Capital Region is important to Manitoba as a whole and is a significant Provincial interest.

Recent events regarding water quality illustrate that the wise use of our water resources is also critical. This was recently highlighted by the tragic events in Walkerton, Ontario, but water quality issues also affect communities and individual residences in Manitoba. The Province concurs with the Drinking Water Advisory Committee, that a high level of water quality should be a principal consideration in any discussions of development planning. The Province is concerned about the reliance on private wells and septic fields in the region. Also, the significant issues associated with waste management, drainage and flooding have been highlighted by many citizens and municipalities and must be an important part of regional planning discussions.

There has been an uneven pattern of development over the last decade which does not foster smart growth, nor the best and most efficient use of available resources. The City of Winnipeg is the core of the Capital Region and contains over half of Manitoba’s population. It has experienced slow growth over the last decade or more. At the same time, almost all municipalities in the Capital Region outside Winnipeg have experienced growth and tax base increases. The Province and municipalities believe that making the most effective use of existing infrastructure and resources is of critical importance.

In the broader planning context, there have been concerns expressed that Manitoba’s Provincial Land Use Policies require strengthening, that their application needs to be broadened, and that they must be applied diligently and consistently.

Some of the issues associated with development in the Capital Region have occurred because planning authorities (municipalities, planning districts and the Province) have not always considered development in the larger regional context. Many issues are inter-municipal in nature (transportation, drainage, environment, resources, etc.), and often development in one municipality impacts on another. It makes the most sense to review land development with a regional perspective in mind.

- i - For a city and its surrounding region to grow together, there must be a recognition of equity issues across various boundaries. Growing inequalities, whether they are reflected in levels of education, income, basic services, or matters of health and safety, do not foster consistent prosperity. That is why the Province began the process of strengthening Winnipeg and the region with a new approach to revitalizing Winnipeg’s inner city. The Neighbourhoods Alive! community development programs have begun the process of rebuilding some inner city neighbourhoods, through education, recreation, and support for families and community organizations. This will be a long process, but the community-based plans that will be developed now in the inner city will not only enable strong neighbourhoods to be built over time, but will be a part of a Capital Region which speaks a common language of equity and growth.

The Province’s Framework for Action - It is the Government’s view and the view of many municipalities, that Provincial leadership and local co-operation are needed to effectively address this broad range of issues challenging the region.

Accordingly and in consultation with municipalities and the public, the Province will immediately begin the process of developing planning policies that will better address the issues facing the Capital Region. These policies are expected to be more detailed than the current Provincial Land Use Policies, forming in effect, a strategic regional policy plan. This plan will provide guidance and context for the more detailed municipal or planning district development plans. Eventually, municipal and planning district development plans will be consistent with this new regional planning framework.

This regional planning exercise will facilitate a more efficient use of the region’s finite resources. It will enable the Province and municipalities to more effectively improve the health and quality of life of a significant proportion of Manitoba’s citizens.

More specifically, the following 10-point action plan summarizes the next steps:

1. The Province will take the lead in developing planning policies that better address the growth management issues facing the Capital Region .

2. The Province will appoint a Regional Planning Advisory Committee (RPAC) to assist in stimulating public discussion and to provide advice on regional planning policies. RPAC membership will represent regional interests. Public participation in the process will be encouraged.

3. The Province will dedicate professional planning staff whose responsibilities will be to deal specifically with the Capital Region.

4. The Province will diligently apply The Provincial Land Use Policies and begin a review process with a view towards enhancing the Policies and extending their application province-wide.

- ii - 5. The Province will undertake a review of the statutes governing planning in Manitoba with a view towards modernizing and streamlining legislation.

6. The Province will develop and maintain common databases containing information on a wide range of topics related to the Capital Region and will provide public access to the information. The Province will also undertake research to provide additional data where necessary to assist in defining regional issues and their scope, and to indicate potential solutions. Such research may cover areas such as: groundwater / water quality, septic fields, lot availability / demand, updated population analysis, and developmental cost benefit analyses.

7. The Province will give priority to maximizing the use of existing infrastructure before approving developments which require new infrastructure. The Province will also review its current approval processes and regulatory requirements for wells and septic fields, with a view towards strengthening them. The Province expects to implement the Drinking Water Advisory Committee’s recommendations in this area.

8. The Province will work with the municipalities in the Capital Region towards developing tax-sharing models that are mutually beneficial.

9. The Province will use the existing Capital Region boundaries in initiating the regional planning process (see map at Appendix B). The Regional Planning Advisory Committee will also solicit public views respecting the boundaries that best meet the region’s planning objectives and make recommendations to the Province.

10. As a part of the regional planning process and in consultation with municipalities and the Regional Planning Advisory Committee, the Manitoba Government will develop strategies to resolve inter-municipal disputes.

- iii - PLANNING MANITOBA’S CAPITAL REGION NEXT STEPS

INTRODUCTION

In the last few years the Province has received a number of reports and submissions on implementing a more effective planning and land use development framework in Manitoba’s Capital Region. Most recently, the Government received the Capital Region Review Panel’s Final Report in December 1999.

This Paper is in part the Province’s response to that Report, but it is also intended to address other related submissions and issues. Following is a strategic response together with proposed next steps to address these issues and to introduce concepts of a new regional planning framework for the Capital Region. While this framework is intended to apply only to the Capital Region, similar models may eventually be applicable to other areas of Manitoba. PLANNING MANITOBA’S CAPITAL REGION NEXT STEPS

REPORTS AND ISSUES AFFECTING THE REGION

The Manitoba Government has reviewed the Capital Region Review Panel’s Final Report. It has done so in light of: • The 1996 Capital Region Strategy, developed in partnership with the public, the region’s 16 municipalities and the Manitoba Round Table on Environment and Economy; • Public submissions during the Capital Region Review Panel’s public consultation process; • Public comments on the Panel’s report; • Emerging issues such as water quality, infrastructure, and livestock production; • The final Report and Recommendations from the Consultation on Sustainable Development Implementation (COSDI) Core Group (June 1999); and • The Drinking Water Advisory Committee Report (November 2000).

These reports and public submissions along with more recent events (described briefly below) have helped shape the Government of Manitoba’s view on the next steps in the Capital Region planning process.

CAPITAL REGION STRATEGY - In May 1996, the Province of Manitoba released the Capital Region Strategy. Developed in partnership with the public, the region’s 16 municipalities and the Manitoba Round Table on Environment and Economy, this Strategy identified five policy areas (Partnerships, Settlement, Economy, Environment and Resources, and Human Resources), 30 policies, and 200 actions to guide regional decision-making. It was prepared as part of Manitoba’s overall Provincial Sustainable Development Strategy.

CAPITAL REGION REVIEW PANEL FINAL REPORT - In June 1998, the Manitoba Government agreed to a recommendation of the Capital Region Committee of elected officials to establish an independent panel to seek community and municipal input, and “to undertake a review and make recommendations to the government respecting the effectiveness of the existing legislative, policy and procedural framework guiding land use planning and development, and the provision of services in the municipalities in the Capital Region”. The Capital Region Review Panel delivered its Final Report in December 1999. Subsequently, the Manitoba Government invited public comment on the Panel’s report.

The Capital Region Review Panel reported on several weaknesses in the existing legislative, policy and procedural framework guiding land use planning and development, and the provision of services among Capital Region municipalities. The Panel’s main recommendation concluded that much of the solution to the region’s problems lay in enacting a statute which would allow municipalities to join together to solve problems. The Panel stated that such an association of municipalities should be voluntary and the Province of Manitoba should play mainly a supportive role. It also made four other recommendations on: statutory consistency, Provincial departmental organization and administration, service-based budgeting and full cost accounting, and municipal costs and revenues.

PUBLIC COMMENTS - Most of the responses received by the Capital Region Review Panel during its public review process, as well as the majority of responses received by the Province on the Report, expressed strong support for some form of regional planning. Respondents also expressed concern with the Panel's proposed exclusion of the Manitoba Government from regional structures. The need for Provincial leadership was a common theme in the submissions. Comments were also received advocating stronger application of The Provincial Land Use Polices.

COSDI - The Consultation on Sustainable Development Implementation (COSDI) was launched in 1998 as a multi-stakeholder consultation initiative, “to consider and make recommendations to government on how Manitoba can best implement Sustainable Development Principles and Guidelines into decision-making, including environmental management, licensing, land use planning, and regulatory processes”.

The COSDI Final Report (June 1999) made 60 recommendations in eight subject areas, including: large area planning, based partially on a consensual multi-stakeholder process, and mandatory municipal planning consistent with the large area plan. The Province accepted the report in June of 2000 and announced its intention to implement its recommendations as a part of its Sustainable Development Strategy.

THE DRINKING WATER ADVISORY COMMITTEE REPORT - The Drinking Water Advisory Committee Report issued by the Office of the Chief Medical Officer of Health on November 6, 2000, made 29 recommendations to the Province including: a single drinking water coordinating agency, better private well testing, better regulations on semi-public and public water systems, enhanced education, communication and standards in all aspects of Manitoba’s drinking water system, and enhanced resources to make the overall system work better.

Recent events regarding water quality illustrate that the wise use of our water resources is a critical public issue. Concerns about water in the Capital Region suggest a need to rethink past development patterns. Some of these problems can be attributed to the amount of growth occurring in the region using private wells and septic fields. Also, significant related issues such as waste management, drainage and flooding must be taken into account in these discussions.

OTHER CONSIDERATIONS - Municipalities are facing increasing challenges in funding infrastructure renewal, highlighting the urgent need to make better land use decisions which will minimize the need to extend that servicing base. Urban centres in particular have pointed to the growing infrastructure deficit and the need for more strategic action on the part of all governments to address this issue. While the City of Winnipeg has about 60% of Manitoba’s population, it has experienced slow growth over the last decade or more. At the same time, some municipalities in the Capital Region have grown quite rapidly. For Winnipeg, the problem has been compounded by the need to maintain old infrastructure and by the decline of some housing stock, particularly in the inner city.

While some peripheral development may not be problematic and in some cases may even be desirable, stronger planning measures may be needed to encourage better use of the region’s existing land, resources and infrastructure.

THE PROVINCIAL PERSPECTIVE - The Manitoba Government concurs that the regional issues cited by the Capital Region Review Panel merit attention. It also agrees that municipalities have an extremely important contribution to make in strengthening the region. However, the Panel’s conclusion that “primary responsibility for advancement of regional thinking is best left to the voluntary initiative of the municipal governments within the Region” (p. 74), is considered by the Province to be only one part of the solution. Also key will be forging strong and stable partnerships among governments, while also instituting an effective, policy and decision-making framework.

In light of the issues noted above, the Government of Manitoba believes maximizing the use of existing public infrastructure and ensuring a safe water supply are of critical importance. Efficient use of existing infrastructure will assist in ensuring safe, healthy and economically sustainable growth within the region.

The Province has constitutional responsibilities for land management, municipalities, resources and the environment. It also contributes financially to infrastructure, educational and health services, certain municipal services, and a number of economic development initiatives. Ensuring a safe, healthy, prosperous and efficient Capital Region is important to Manitoba as a whole and is a significant Provincial interest. The Manitoba Government also believes that it is vital to ensure that Manitoba’s capital city, Winnipeg, must be strong and vibrant and should grow in harmony with its neighbouring municipalities.

The Manitoba Government believes that Provincial leadership is required to address inter-jurisdictional issues and to ensure that Manitoba’s Capital Region is competitive with other Canadian urban-centered regions like Edmonton, Calgary and Ottawa. The Manitoba Government also believes that effective land use policies for the Capital Region will support and encourage a strong region, a strong capital city and a strong downtown Winnipeg. Dealing co-operatively on regional issues will provide a basis for citizens and leaders to work together towards a common vision. Through a strengthened regional partnership, new directions can be defined which will enhance the region’s future prospects and meet the priorities of its citizens.

This Next Steps paper has been organized into three broad areas, under which the major issues affecting the Capital Region are discussed:

• Effective Regional Planning • Planning For A Sustainable Region • Regional Co-operation The Government of Manitoba believes that the ten Actions described in the following pages will be useful in moving towards co-operative solutions in the region. MANITOBA’S VISION FOR THE CAPITAL REGION

The Manitoba Government’s vision for the Capital Region is one of a safe, healthy, efficient and prosperous region with a strong core city, where the public, governments and organizations work together, enhancing community development opportunities, effectively managing and protecting resources, and providing citizens with a high quality of life.

A. EFFECTIVE REGIONAL PLANNING

A.1 Regional Policy Plan and Regional Planning Advisory Committee

The Capital Region Review Panel stated that “... the efforts by individual municipalities or planning districts to address issues of a Regional nature cannot, in itself, ensure a sound Regional perspective on such issues” (page 47). The Panel further noted that a regional plan should not consolidate existing plans nor replace them, but should focus on “development policy or activity which entails potentially significant impacts beyond the boundaries of the individual municipalities or planning districts” (page 48). The Manitoba Government agrees with these statements.

The Province and many municipalities believe that Provincial leadership is needed in order to effectively address the broad range of issues which cross municipal boundaries.

Low density development on the fringes of the region’s urban centres (both within and outside urban centres’ boundaries), often referred to as sprawl, is an example of one of these regional cross-jurisdictional issues. Some believe it is linked with a consequent decline in the central part of Winnipeg and deterioration of existing public infrastructure in the City (as well as other urban centres). Although previous Manitoba reports have not identified the specific causal links between sprawl and inner city decline, the Province nevertheless recognizes that both issues need to be addressed if the region as a whole is to prosper and grow.

The Province has thus launched Neighbourhoods Alive! and joined as a partner with Canada and Winnipeg in the Winnipeg Housing and Homelessness Initiative. These programs are aimed at revitalizing Winnipeg neighbourhoods and housing most in need.

- 6 - A number of other regional issues have been identified by the public. The Province agrees that these also need to be addressed. Some of these issues relate to: • protecting vital resources such as potable water and soil from pollution or excess use; • urban infill development; • the efficient use and maintenance of existing public infrastructure; • financial and service efficiencies; • hazards and nuisance, particularly across boundaries; • protection of agricultural land and resources; and • the inappropriate location of potentially incompatible uses.

The Government of Manitoba recognizes the interdependency of communities in the region and believes that large area or regional planning will offer an effective means of managing settlement, servicing, environmental, resource and economic issues. It also provides an effective means for community participation in setting regional priorities and adopting plans. This concept was also highlighted by COSDI.

Local planning will need to be better coordinated and/or integrated with regional planning over time. As well, processes will need to be developed which will ensure consistency of municipal and district plans with a regional Policy Plan.

Some of the problems associated with development in the Capital Region have occurred because planning authorities (municipalities, planning districts and the Province) have not always reviewed development in the larger regional context. Many issues are inter-municipal in nature (e.g. transportation, drainage, environmental issues, etc.), and often development in one municipality impacts on another. There is a need for the Province to review land development with a regional perspective in mind and with the co-operation of all municipalities.

In consultation with municipalities, planning districts and the public, the Province will begin the process of developing a set of planning policies that will apply specifically to the Capital Region. A Regional Planning Advisory Committee will be appointed to assist in stimulating public discussion and to advise the Province.

The policies developed by the Province will address growth in the entire region and are expected to be more detailed than the current Provincial Land Use Policies. In effect, they will become a strategic regional policy plan providing policy guidance for the more detailed municipal or planning district development plans. (See Appendix A for a brief summary of this new planning framework)

- 7 - Actions

1. The Province will take the lead in developing planning policies that better address the growth management issues facing the Capital Region.

3. The Province will dedicate professional planning staff whose responsibilities will be to deal specifically with the Capital Region.

A.2 Provincial Land Use Policies

The Capital Region Review Panel recommended that “...the Province review the regional implications of the Provincial Land Use Policies, and encourage their application . . .” (page 74). There have also been numerous other suggestions for stronger application of the Policies from the public and non-government organizations.

The Provincial Land Use Policies (PLUPs) were originally developed in the mid-1970s. They have been used to guide the review of municipal and district development plans in Manitoba (outside of Winnipeg) since 1980, when they were adopted as a regulation under The Planning Act. The PLUPs were last reviewed and amended in 1994. (See Appendix C for a brief history of the planning framework affecting the region.)

Currently, the PLUPs provide only general guidance for the development of land in large urban centres. Planning at the regional level will require greater emphasis on specific policies for both urban and rural municipalities. There have also been concerns expressed that The Provincial Land Use Policies require strengthening, that their application needs to be broadened, and that they need be applied diligently and perhaps more consistently.

Actions

4. The Province will diligently apply The Provincial Land Use Policies and begin a review process with a view towards enhancing the Policies and extending their application province-wide.

- 8 - A.3 Planning Legislation

The Capital Region Review Panel noted a number of inconsistencies in legislation governing the City of Winnipeg (The City of Winnipeg Act) and other municipalities in Manitoba (The Planning Act and The Municipal Act). These differences have evolved over time as the Manitoba Government has granted Winnipeg different powers due to its size and extensive administrative structure, while at the same time responding to the different needs of other Manitoba municipalities. (See Appendix C for a brief history of the planning framework affecting the region.)

The Panel recommended that, “wherever relevant, all provincial legislation, policy and procedures treat all municipalities within the Capital Region consistently” (page 74). The Capital Region Strategy (Policy 1.3) also recommended that applicable laws, regulations and policies be better integrated and coordinated. Integrated planning laws could also enhance the Province’s community planning and economic development framework, and would be consistent with the recommendations of COSDI.

Actions

5. The Province will undertake a review of the statutes governing planning in Manitoba with a view towards modernizing and streamlining legislation.

A.4 Regional Information

The Capital Region Review Panel reported that, “Perhaps as a result of fiscal constraint, related data collection and research functions receive little attention at either the municipal or provincial level” (page 46). COSDI also noted the importance of easily accessible information for effective public participation. To achieve many of the regional objectives, comprehensive and current information is needed to produce effective plans, policies and programs. It is also vital to have co-operative policies developed from common databases available to citizens and planning authorities.

The Province believes that research is required in a number of areas in order to clearly define the nature of the problems, as well as to assist in solving them. Potential study areas include: wells / groundwater, septic fields and waste disposal, lot availability / demand, updated population analysis, and developmental cost benefit analysis.

- 9 - Actions

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C.1 Boundaries

When the Capital Region Committee of provincial and municipal elected officials was established in 1989 (originally called the Winnipeg Region Committee), boundaries were based on what was defined at the time, as Winnipeg’s commutershed, adjusted to take into account municipal boundaries.

The existing Capital Region as defined by the Government of Manitoba consists of 16 municipalities:

• Cartier, RM • Springfield, RM • East St. Paul, RM • St. Andrews, RM • Headingley, RM • St. Clements, RM • Macdonald, RM • St. François Xavier, RM • Ritchot, RM • Stonewall, Town • Rockwood, RM • Taché, RM • Rosser, RM • West St. Paul, RM, and • Selkirk, City • Winnipeg, City.

- 11 - The Province intends to retain these Capital Region boundaries for the time being (See attached map, Appendix B). However, the Regional Planning Advisory Committee, municipalities or the public may make recommendations to the Province to adjust these boundaries to better suit planning objectives in the region.

Actions

C.2 Inter-Municipal Mediation

Most inter-municipal disputes arise from the financial impacts associated with land use conflicts, and from disputes related to threats to resources, service cost sharing and uncoordinated development.

The Capital Region Review Panel noted in their report that current mediation mechanisms have not been wholly effective (page 45). The Municipal Board is a quasi- judicial body which is limited in its mandate, particularly with respect to Winnipeg. Planning districts tend to include only two or three municipalities. From time to time, Manitoba Intergovernmental Affairs has made its services available to mediate inter- municipal disputes, with some degree of success.

A better approach to mediation is needed. This approach should apply broadly, focus on negotiation and mutual agreement rather than on imposing solutions, and be effective where jurisdictions are unable to negotiate a solution on their own but are prepared to accept the participation of an independent third party. The Manitoba Government believes that locally developed approaches to mediation offer the greatest prospect of positive outcomes. When requested, the Government can also assist in mediating issues among local authorities.

Actions 10. As a part of the regional planning process and in consultation with municipalities and the Regional Planning Advisory Committee, the Manitoba Government will develop strategies to resolve inter- municipal disputes.

- 12 - C.3 Delivery of Provincial Public Services

The Capital Region Review Panel observed that the recent consolidation of the former departments of Urban Affairs and Rural Development should facilitate dialogue between the Province and the municipalities within the Capital Region. To strengthen this linkage further, the Panel proposed that a departmental unit be assigned responsibility for regional research, analysis and program delivery. The Province concurs with this recommendation. As stated above, the Department of Intergovernmental Affairs will dedicate professional planning staff to the Capital Region and will also assist in facilitating the regional delivery of services and mediation of issues among local authorities.

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