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Public Project, Private Developer: Understanding the Impact of Local

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Public Project, Private Developer: Understanding the Impact of Local Public project, private developer: Understanding the impact of local policy frameworks on the public-private housing redevelopment of Regent Park in Toronto, Ontario by Trevor Robinson A thesis submitted to the Graduate Program in Geography and Planning in conformity with the requirements for the Degree of Master of Arts Queen’s University Kingston, Ontario, Canada September, 2017 Copyright © Trevor Robinson, 2017 Abstract This thesis examines Regent Park, a public housing community in Toronto, Ontario undergoing mixed-income revitalization through a public-private partnership (3P) since 2006. Much of the existing literature has studied the Regent Park revitalization from the perspective of public housing tenants, conceptualizing the project as a continuation of redevelopment efforts in the United States. However, this approach neglects the unique Canadian policy context and the point-of-view of industry professionals involved in the development process. Using Toronto as the primary lens of geographic analysis to study the revitalization, a qualitative, mixed- methods approach was employed in this thesis to focus on the local policy context and perspective of individuals involved in the Regent Park redevelopment process. Data was gathered, primarily, through interviews with 25 public and private sector professionals. Subsequent analysis generated several findings and recommendations for application at Regent Park and 3P redevelopment efforts in Toronto and other cities. Where many recent studies depict the Regent Park revitalization as having an overall negative outcome for public housing tenants and other public shareholders, this thesis, in contrast, found that the project is delivering notable social benefits to Regent Park and surrounding communities, while avoiding the displacement of low-income residents characteristic of public housing redevelopment in the US. Western governments have increasingly partnered with the private sector to deliver services and infrastructure over the last 30 years. It is therefore imperative to explore a diversity of perspectives to improve the outcomes of 3P social service delivery in the future, as this thesis does by understanding the viewpoints of development industry professionals in Toronto. Keywords: Public-private partnerships, public housing revitalization, public policy, social mix, real estate development, urban planning. ii Acknowledgements This thesis is a culmination of the support and contributions of many. First, the interview participants for this research must be acknowledged. These individuals were gracious with their time and forthcoming with information. The findings of this thesis were only made possible by their insightful responses. Those who assisted with organizing the interviews or were gatekeepers to the participants must also be thanked. Of note, Niall Haggart has consistently provided me with opportunities to learn about the development industry. The Department of Geography and Planning at Queen’s has been an excellent learning environment. I extend gratitude to the Department staff, including Angela Balesdent, John Bond, Kathy Hoover, Joan Knox, Sharon Mohammed, and Jo-Anne Tinlin. I am also indebted to numerous professors for cultivating my knowledge and interest in geography and supporting this project in various ways. Special thanks to Drs. John Andrew, Carl Bray, Laura Cameron, Ryan Danby, David Gordon, Warren Mabee, Patricia Streich, Paul Treitz, and Graham Whitelaw. My project supervisors, Drs. Betsy Donald and Marcus Létourneau, have been there for every step of the way. Dr. Donald has been generous with her time, support, and insights, especially considering her numerous commitments and responsibilities. Dr. Létourneau has involved himself with enthusiasm and rigour, making this project his top priority despite his rise in the academic and business worlds. He has always had my best interests at heart, and I can truly say that we have become friends over the last few years. Of course, this project has greatly benefitted from the support of my friends, including Matt Bebenek, and my family, both extended and immediate. Much thanks to my parents, Dr. Jackie James and Steven Robinson, and brothers, Luke and Mitchell, for their constant support and encouragement. Finally, this project would have been impossible without the endless supply of encouragement and inspiration from Ashton Taylor. She is the most intelligent, compassionate, and hard-working person I have ever met, and an incredible source of confidence and strength for me. In so many ways, she is a shining example of how to live one’s life, empowering me to be the best person I can be. iii Table of Contents Abstract ............................................................................................................................................... ii Acknowledgements ............................................................................................................................. iii Table of Contents ................................................................................................................................ iv List of Tables ..................................................................................................................................... viii List of Figures ...................................................................................................................................... ix List of Abbreviations ............................................................................................................................. x Chapter 1: Introduction ...................................................................................... 1 1.1 Background ................................................................................................................................. 2 1.2 Existing Research ......................................................................................................................... 5 1.3 Gaps in the Research ................................................................................................................... 6 1.4 Research Objectives .................................................................................................................... 7 1.5 Methodology .............................................................................................................................. 8 1.6 Significance ................................................................................................................................. 9 1.7 Outline ...................................................................................................................................... 10 Chapter 2: Public-Private Partnerships ............................................................. 12 2.1 Definition and Applications of Public-Private Partnerships ........................................................ 12 2.2 Public-Private Partnerships in Canada ....................................................................................... 14 2.3 Affordable Housing Public-Private Partnerships in Canada ........................................................ 17 2.3.1 Winnipeg, Calgary, and Other Medium-Sized Cities .................................................................. 18 2.3.2 Montreal, Quebec ...................................................................................................................... 19 2.3.3 Vancouver, British Columbia ...................................................................................................... 20 2.3.4 Toronto, Ontario ........................................................................................................................ 21 2.4 Conclusion ................................................................................................................................. 24 Chapter 3: The Differences Between Canada and the US .................................. 27 3.1 Canadian Versus American Cities ............................................................................................... 28 3.2 Public Housing Policy and Mixed-Income Development in the US .............................................. 35 3.2.1 US Public Housing Policy, 1930s to 1980s .................................................................................. 35 3.2.2 HOPE VI, 1992 to 2010 ............................................................................................................... 38 3.2.3 Post-HOPe VI Policies, 2010 to 2016 .......................................................................................... 39 3.3 Public Housing and Social Mix in Canada and Toronto ............................................................... 41 3.3.1 Establishment and Expansion of Public Housing, 1944 to 1973 ................................................. 42 3.3.2 Third Sector Housing and Social Mix Policies, 1974 to 1985 ...................................................... 43 3.3.3 Devolution of Public Housing Responsibility, 1986 to Present .................................................. 44 3.4 Conclusion ................................................................................................................................. 47 Chapter 4: The Toronto Context ....................................................................... 51 4.1 The History of Growth and Governance in Toronto .................................................................... 51 4.2 The History of Housing Development
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