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(Re)Visioning Winnipeg's Chinatown

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(Re)Visioning Winnipeg's Chinatown (RE)VISIONING WINNIPEG’S CHINATOWN A critical analysis of settler-colonial revitalization by ANGIE MOJICA Department of City Planning Faculty of Architecture University of Manitoba i EXECUTIVE SUMMARY After decades of disinvestment, Winnipeg’s Northwest Exchange District and Chinatown are the focus of recent revitalization initiatives led by non-governmental planning organizations. The intent of this Capstone project is not to provide an in-depth analysis, nor critique of the recent Development Strategy. By comparing organizational mandates, jurisdictional boundaries, and stakeholder perspectives, I argue the voices and interests of those experiencing homelessness, Indigenous People, and other non-Chinese BIPOC (Black, Indigenous, People of Colour) are marginalized and missing from the planning process, placing them at risk of displacement. Participants consisted of representatives from community organizations (COs), non-governmental planning organizations (NGPOs), and housing- and homelessness-focused non-profit organizations (HNPOs). Data from emotional mapping and semi-structured interviews was analyzed through a perspective informed by gentrification literature and settler-colonial literature. All participants saw a need for reinvestment in Chinatown and the Northwest Exchange. However, most participants, especially COs and HNPOs, expressed concerns about changes that would displace their community, residents, and/or client base. Social issues, such as homelessness and poverty, are only worsening and similar urban renewal initiatives in the past have done little to improve circumstances for the city-centre’s inhabitants. There was a desire for Chinatown to be an inclusive and multi-cultural space; but some participants discussed conflicts around how physical representations can exclude those who do not identify with its branding. Lastly, the current and historic Indigenous inhabitants of the area and Indigenous-led grassroots movements are concealed and erased by a lack of representation in the Development Strategy’s key policies. Based on these findings, a plan for the area’s social development is needed, created through partnerships between COs, HNPOs, and NGPOs, but led by Winnipeg’s official planning department. Indigenous people should be recognized as authentic inhabitants of the space and strategies should be incorporated to address aspects of Indigenous homelessness. These strategies should be led by Indigenous people, but with the full support of the City and other organizations. KEYWORDS: Revitalization, gentrification, displacement, settler-colonial, Winnipeg, Chinatown ii ACKNOWLEDGMENTS These last two-years as a City Planning Masters student have breezed by. In addition to convenience store snacks from Degrees and maybe one-too-many cups of coffee, I would not have been able to complete this Capstone project and Masters degree without the support of the following groups and individuals: My advisor, Dr. Sarah Cooper, I’m incredibly grateful for your patience and understanding throughout this City Planning degree. I’d also like to thank you for your suggestions and advice in guiding my Capstone project. My committee, Dr. Rae Bridgman and Christina Maes Nino, thank you for your knowledge, feedback, and support as I worked towards completing my Capstone. A big thank you also goes out to everyone in the Department of City Planning for imparting your wisdom to me and teaching me skills that I will use for the rest of my career. Thank you to the selection committee and generous donors of the following awards for lessening my financial burden throughout my degree: Manitoba Graduate Scholarship, SSHRC Canadian Graduate Scholarship — Masters, Tri-Council Top-Up Award, G. Clarence Elliot Memorial Fellowship, and the Thomas B. Yauk — MPPI Scholarship. I’d also like to thank the Associate Collegiate Schools of Planning for giving me the opportunity to attend the 2018 Pre-Doctoral Workshop and for connecting me with other under-represented students of colour in Planning. To my research participants, thank you for taking the time to meet with me and for sharing you and your organization’s experiences with the Exchange District and Chinatown. This project would not have been possible without you. Thank you to my fellow classmates in the University of Manitoba City Planning cohort of 2020 for your camaraderie and for being my family away from home. We’ve made it! My parents, Maria Mojica and Alex Mojica, and my grandparents, Nanay Peng and Lolo: Maraming salamat po sa lahat na isinakripisyo ninyo para lang dumating sa Canada. Salamat din po sa inyong suporta at sa paglalaki sa akin. Para sa’yo po ito. My partner and best friend, Stephen Bennett: Thank you for encouraging me to apply to the program and to the scholarships I received, for being my cheerleader, and for putting up with me through yet another stressful university degree. And lastly, my cat, Mewshi; your cuddles and purring have been a welcome distraction. iii TABLE OF CONTENTS 1 INTRODUCTION 1 2 LITERATURE REVIEW 6 Research Design & Questions 2 What is space? What is place? 7 Position as a Researcher 3 Placemaking & Branding 10 Document Structure 4 Gentrification 12 Displacement 14 Comparing Settler-Colonial and Indigenous Perspectives on Space & Place 16 DISCUSSIONS & ANALYSIS FINDINGS 51 5 6 87 Perceived Boundary Maps 53 (Re)production of Spatial Meanings 88 Organizational Mandate, Overlapping Histories History, & Involvement in the Study Area 61 & Experiences 90 PARK Analysis & Vision for the Future 65 Gaps in Planning Chinatown 93 Experiences of Chinatown & the Exchange’s Inhabitants 79 iv Executive Summary ii Table of Contents iv i Acknowledgments iii List of Figures vii 3 CONTEXT 23 4 METHODOLOGY 43 Locational Context 23 Research Participants 44 Regulatory Context 26 Emotional Mapping 45 Historical & Social Context 34 Semi-structured Interviews 47 Limitations 48 RECOMMENDATIONS APPENDIXES 102 7 & CONCLUSION 96 X Addressing the Research Questions 97 References 102 Recommendations for the Development Strategy 98 A. Interview Guides 107 B. Perceived Boundary Maps 111 Implications for Planning Practice & Public Engagement in Winnipeg 100 Recommendations for Future Research 101 v vi LIST OF FIGURES FIGURE 1. Winnipeg’s former Public Safety building and parkade being demolished. viii FIGURE 2. King Street and James Avenue, facing towards William Avenue. 5 FIGURE 3. Waterfront Drive and Stephen Juba Park. 22 FIGURE 4. Study area and surrounding neighbourhoods. 24 FIGURE 5. OurWinnipeg Development Plan urban structure map.. 27 FIGURE 6. Winnipeg Zoning By-law and Winnipeg Downtown Zoning By-Law map. .29 FIGURE 7. Downtown BIZ boundaries. 31 FIGURE 8. Development Strategy catalyst zones. 33 FIGURE 9. Data collection and analysis visual aid. 42 FIGURE 10. Number of participants per stakeholder category. 45 FIGURE 11. Perceived boundary map breakdown. .46 FIGURE 12. Example map with compiled participant responses. 47 FIGURE 13. Chinatown’s gate and the Mandarin Building. 50 FIGURE 14. Exchange District perceived boundaries by stakeholder category. 52 FIGURE 15. Intersection at Main Street and McDermot Avenue. 55 FIGURE 16. Chinatown perceived boundaries by stakeholder category. 57 FIGURE 17. Chinese gardens located by the Winnipeg Chinese Cultural and Community Centre. .60 FIGURE 18. Disraeli Freeway by Main Street, facing the United Way building and Sek On Toi apartments. .78 FIGURE 19. People enjoying an interactive art piece in Market Square during Nuit Blanche. 85 FIGURE 20. Demolition site on Princess Street by Red River College facing Chinatown. 86 Unless otherwise specified, all images and graphics were produced by the author of this Capstone, Angie Mojica. vii FIGURE 1. Winnipeg’s former Public Safety building and parkade being demolished. viii 1 INTRODUCTION Over the last decade, momentum has increased around revitalizing Winnipeg’s Downtown. Narratives of the Downtown often describe it as an unsafe and decaying no mans’ land in need of “cleaning up”. While there is a need for more residents and people in the space beyond working hours to combat urban sprawl and mitigate decline (Bellamy, 2019; Lennon & Leo, 2001), the current wave of revitalization focuses on physical and economic improvements tailored towards middle- and upper- class populations. Developments like True North Square, Hargrave Market, and the newly renovated Forks Market create “consumption spaces” (see Zukin, 1998) to attract suburbanites to the Downtown (Toews, 2018). Urban social issues like poverty and homelessness are merely swept away and displaced to other neighbourhoods that border the Downtown. The most recent wave of revitalization in Winnipeg is expanding into Downtown’s northern limits. A design competition was held in 2018 to redevelop the former Public Safety Building and parkade (seen in FIGURE 1) into the Marketlands (CentreVenture, 2020). With construction for the Marketlands starting in 2020 and Red River College’s Social Innovation Centre expansion (RRC, 2018), interest in the area was renewed and led to the creation of the Development Strategy for Northwest Exchange District and Chinatown (Development Strategy) (CentreVenture, 2019). The intent of this Capstone project is not to provide an in-depth analysis, nor critique of the Development Strategy. Rather, by comparing organizational mandates, jurisdictional boundaries, and stakeholder perspectives for change, I argue the voices and interests of those experiencing homelessness, Indigenous People, and other non-Chinese
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