CANADIAN INSTITUTE OF PLANNERS/INSTITUT CANAD I EN DES URBANISTES • 29:3/MAY / MAI 1989
HOUSING/HABITAT
' .--~ .. ( ,· I ---i: .. -·/ . ' CIP Publications Committee/ Francophone Advisory Committee/ comite des publications de l'ICU comite consultatif francophone D Lehman Walker D David Hulchanski D Richard Bienvenu D Jacques Chenier Chairman/president D Janet Kinley D Jean-Paul Guay • Leon Ploegaerts Plan Canada D Barry Clark o John Livey D Paul Lewis JOURNAL OF THE CANADIAN INSTITUTE D Patrick G. Deoux o Jeanne Wolfe OF PLANNERS/REVUE DE L'INSTITUT D Paul Fenwick D Barry Zwicker The opinions expressed in Plan Canada are CANADIEN DES URBANISTES D Denis O'Gorman 404-126, RUE YORK STREET not necessarily those of the Canadian Insti OTTAWA, CANADA K1N 5T5 Plan Canada Team/groupe tute of Planners, the editors or affiliations of responsable de Plan Canada authors.Iles opinions exprimees dans Plan National Council/conseil national Canada ne sont pas necessairement celles 1988-1989 Brijesh Mathur, B. Arch., MPL, MCIP de l'lnstitut canadien des urbanistes, ni cell es Editor-in-Chief/redacteur en chef Dave Witty, MCIP de la redaction, des employeurs de !'auteur ou des associations dont celui-ci est membre. Presidenl/president Tom Carter, Ph.D. Co-Editor & Anglophone Academic Editor/ Plan Canada is indexed in the Canadian Mag John Steil, MCIP co-redacteur et redacteur academique President elecl/president designe azine Index. It is published bi-monthly and is anglophone mailed at Winnipeg./Plan Canada est reper Gary Davidson, MCIP Marie Lessard, B. Arch., M. Phil, MICU torie dans Canadian Magazine Index. II est Past Presidenl/president sortant Co-Editor & Francophone Academic Editor/ publie tout les deux mois et poste a Winnipeg. Christopher Leach, MCIP co-redactrice et redactrice academique Atlantic Planners Institute francophone Second Class Mail Registration Number/ courrier de deuxieme classe, enregistre Pierre Dube, MICU Mary Ann Beavis, Ph.D. ment no. 5479 Corporation professionnelle des urbanistes Assistant Editor/redactrice adjointe du Quebec Bruce Chochinov, MA, MCP ISSN 0032-0544 James Balfour, MCIP Newsletter Editor/redacteur du bulletin Plan Canada is published for the Canadian Ontario Professional Planners Institute Tom Carter Institute of Planners by:/Plan Canada est Janet Kinley, MCIP Anglophone Book Review Editor/redacteur publie pour l'lnstitut canadien des urbanistes Manitoba Association of C.I.P. des comptes rendus de livres anglophone par: Mohammed Afsar, MCIP Leon Ploegaerts Association of Professional Community Francophone Book Review Editor/redacteur Planners of Saskatchewan des comptes rendus de livres francophone Patricia Maloney, MCIP Raeber Graphics Inc., Winnipeg, Manitoba Alberta Association of C.1.P. Design, Printing & Mailing/conception, Jill Davidson, MCIP impression et envois postaux Planning Institute of British Columbia Triacom Inc., Winnipeg Gary Porter Advertising & Subscriptions/publicite et Institute of Urban Studies abonnement Student Representative/representant des University of Winnipeg etudiants 515 Portage Avenue Anglophone Advisory Committee/ Winnipeg, Manitoba David Sherwood, MCIP/MICU comite consultatif anglophone Canada R3B 2E9 Executive Director/directeur executif D Geoff Bargh D Claudette Toupin Tel. (204) 786-9409 D Janet Kinley D Jim Zamprelli Fax (204) 786-1824
INFORMATION FOR AUTHORS INFORMATION AUX AUTEURS Plan Ccmada pubUshes both refereed and non-refereed arl:icles qf Plan Canada publie des a:rl:icles qui tmcchent diflerents aspects de interest to planning practitioners and academics from diverse l 'urbanisnte et qu.i sont susceptibles cl 'interesser /es praticiens et les streams within planrdng. Generally, articles .frn· publication are universitaires. Certains de ces articles, mais pas taus, sont soumis chosen on the basis <.if their appeal to a wide readership. Often, a des arbitres. Nemmwins, ce1.1x dont le contenu est trap technique scholarly a:riicles which are lvighly technical -in their presentation devront mre revises defaqJn a /es rendre accessibles ct taus. Plan have to be re1.1ised. Types of arlicles published include review arli Canada publie autant des miicles sur la pratique urbanistique cles, reportsr./[originalresearch, professionalplann-ingvieiupoints, que des ra1JP(n1B derecherche, des points devue, des comp/es rendus research notes, book r@iews and r@iew essays. Since the theme and de livres et des essais. Conmte le theme des numeros est determine content qf Plan Canada issues are determ:ined sei:eral months in plusieurs mois cl 'avance, nous 'invitons les personnes interessees ii advance qfpublicaJ:ion date, prospective authors are encouraged to publier ·un article a commmriquer avec la redaction le plus Wt communicate with the Edilof' at a fairly early stage in the dm:elop possible et au plus ta.rd 90jonrs avant la date limitepour la. remise ment of their ma:nuscri11ts and at least 90 days befom lite copy des a1iicles (ces dales soul i:ndiquees sur l 'avant-derni.ere page de la deadline. (Far deadUnes see inside back cm:er). Simultaneous S1tb reinte). Nous n 'acceptons pas les a:rt:icles soumis a cl 'autres publica mission of m.anuscripts to oll1er publ.icat.ions is unacceptable. tions. Les te..1,tes doivent avoir un ma:vimum de 6 000 mots; its Manuscrivts sh CONTENTS/SOMMAIRE EDITORIALS/ THEME ARTICLES/DOSSIER EDITORIAUX Rural Residential Renovation: A Case Study of Rural Homeowners in Editorial/Editorial Atlantic Canada - Ran Corbet,t 9 - Brifesh Mathur 2 No Place Like Home: Dealing with Homelessness in Canada Letters/Lettres 4 - Gerald Daly 17 Note from the Guest The National Housing Research Committee - Tany Wellman 20 Editor - Tom Carter 6 A Guide to Housing Statistics at Statistics Canada - Robin Lawe 22 Housing Research: Getting a Little Help from CMHC - Michael Macphersan 26 Nouvelles politiques en habitation? - R~ane Blary 29 De la cite ideale a la maison de banlieue familiale: L'experience de Cite-jardin du tricentenaire, Montreal, 1940-1947 - Marc H Clwko 38 IN REVIEW/LECTURES Book Reviews/Comptes rendus de livres 51 NEWSLETTER/BULLETIN COVER: Affiliate Corner/Nouvelles des associations provinciales Hausing/Habitat 52 Notes/Notes 53 Pointed Corner/Opinions 54 Canadian Institute of Planners Strategic Plan/Plan strategique de l'lnstitut canadien des urbanistes - Gary Davidsan 55 Conferences/Cong res 62 PLAN CANADA, 29:3/MAY/MAI 1989 1 EDITORIALS/EDITORIAUX This issue of Plan Canada is an example of Ce numero de Plan Canada est un modele the balance we have sought to achieve in de l'equilibre que nous cherchions a attein the content between academic and non dre entre les articles academiques et les Editorial academic papers, news and views, English autres, entre les nouvelles et les opinions, and French, and the regions of Canada. entre les textes en fran~ais et ceux en an The Guest Editor, Dr. Tom Carter of the Insti glais, et entre les differentes regions du tute of Urban Studies, University of Winnipeg, is Canada. Le redacteur invite, Tom Carter de well respected for his work in the housing field. l'Universite de Winnipeg (Institute of Urban He has been able to use his expertise and Studies), est bien connu pour ses travaux sur contacts to produce an issue which provides a !'habitation. Sa competence et ses contacts lui snapshot of current housing issues in the ont permis de preparer un numero qui donne country. un bon aperc;u des enjeux actuels dans le The January 1989 issue of Plan Canada secteur de !'habitation au Canada. evoked much response from our readers. Le Plan Canada de janvier 1989 a suscite Some of the letters received are printed in this maints commentaires. Certaines des lettres issue. In addition, we were flooded with phone regues son! reproduites dans ce numero. Les calls and personal letters from friends. Most appels telephoniques et les lettres personnelles writers were complimentary, and some offered ant aussi ete tres nombreuses. En general, les constructive suggestions for improvement. The lettres etaient elogieuses; plusieurs conte most serious concern raised by some readers naient des propositions constructives pour through word of mouth and one letter (see ameliorer la revue. L'inquietude la plus grande Leon Ploegaerts' contribution to our Letters/ concernait la faible qualite du frangais, eu Lettres section) was that the quality of the egard a la traduction, la grammaire, la typo French content was poor with respect to trans graphie et le style; quelques lecteurs nous l'ont lation, grammar, typography and writing. Other exprimee verbalement, un autre, Leon Ploe problems cited included incorrect captioning gaerts, nous a fait parvenir une lettre que nous of photos and page layout. reproduisons a la section «Letters/Lettres». I am pleased to report that we have taken Parmi les autres problemes releves, mention several steps to improve the calibre of the nons les legendes et la mise en page. French material, to ensure more thorough edit Plusieurs mesures ant ete mises de l'avant ing for both French and English copy, and to pour ameliorer la qualite du frangais, pour as improve the page layout. Among the new mea surer un meilleurs processus editorial, tant en sures are: frangais qu'en anglais, et pour ameliorer la • the establishment of a Francophone Advi mise en page. Parmi celles-ci: sory Committee, which will assist in solicit • la creation d'un comite consultatif franco ing French language material, and advise phone, qui a pour tache de participer a la on the development of French language sollicitation de textes en frangais et de don content; ner son avis sur le developpement du «cor • the appointment of Marie Lessard as Co pus» francophone; Editor and Francophone Academic Editor. • la nomination de Marie Lessard au paste de In her new capacity, she will be responsible co-redactrice et redactrice academique for the processing of all French material for francophone; a ce titre, elle sera respon publication; sable de !'edition de tous les textes en • the appointment of a Montreal-based firm frangais; of translators; • !'engagement d'un bureau montrealais de • shifting the responsibility for typing and traduction; proofreading of French language material • le transfert de la responsabilite de la dac to the Francophone Co-Editor; tylographie et de la correction des epreuves • changes in the internal editorial process; des textes en frangais a la co-redactrice • the appointment of another graphic design francophone; firm. • la modification du processus editorial; We believe that these measures represent a • !'engagement d'une nouvelle firme de gra first step toward resolving the problems identi phisme. fied by our readers. The next few issues will Ces mesures constituent, nous crayons, show whether these measures are effective. une premiere etape pour solutionner les pro We will continue to refine our editorial activities blemes constates par les lecteurs. Avec les 2 PLAN CANADA, 29:3/MAY/MAI 1989 EDITORIALS/EDITORIAUX to provide you with a high quality product. prochains numeros, ii sera possible de dire si Other changes at Plan Canada include the elles sont efficaces. Nous continuerons a ame appointment of Dr. Mary Ann Beavis as Assist liorer nos procedures editoriales pour vous ant Editor and of Dr. Leon Ploegaerts as the assurer d'un produit de qualite. Francophone Book Editor. Dr. Tom Carter will Par ailleurs, Mary Ann Beavis a ete nommee continue to serve as the Anglophone Book redactrice adjointe, tandis que Leon Ploegaerts Editor. devient le redacteur charge des livres franco I thank our readers for their response to the phones. Tom Carter, pour sa part, demeure le first issue, and hope that you will continue to redacteur charge des livres anglophones. write to us in the future. Je remercie nos lecteurs pour leurs com mentaires sur ce premier numero. J'espere BRIJESH MATHUR MCIP que vous continuerez nous ecrire. Editor-in-Chief a BRIJESH MATHUR, MICU Redacteur en chef PLAN CANADA, 29:3/MAY/MAI 1989 3 The new-format Plan Canada is very refreshing, exciting, Stadium, home of the Montreal Royals, the Dodgers #1 farm apparently ambitious, and good fun! club. The right field wall was about the height of the Knit-to-Fit Many congratulations on your efforts, and good luck in the building. A cause for celebration was when one of the slug future. gers such as Rocky Nelson or Tim Gentile or Joe Altobelli not only cleared the fence, but also Parthenais St., putting the ball PROFESSOR MICHAEL DEAR School of Urban & Regwnal Planning on the building roof. I think they also received a cash bonus, University ofSouthern Cali/arnia at Los Angeles apart from the glory. WAYNE JACKSON Edmonton, Alberta (Letter addressed to President, GIP) Your tenure as President will be remembered as the time when the Institute turned Plan Canada into a respectable professional/ academic journal. The content, format and overall image are great. I hope you can keep it up. The high standard of the first new issue should I was pleased to see that Plan Canada is off and running encourage contributors. Who knows, I may even start to write! again, and I wish you the best of success over the next three Many thanks for your effort. years. However, I do have some minor comments/ questions. There still seems to be a schizophrenic attitude as to PROFESSOR BRAHM WIESMAN whether Plan Canada is indeed a scholarly journal or another School of Community & Regwnal Planning professional "house" magazine. We see a mixture of articles University ofBritish Columbia - some academic, some of general interest, institute news and humorous illustrations. Are we trying to emulate/com pete with J.A.IP., Town Planning Review, OPP.I. Newsletter, I would like to congratulate you and the rest of your team on a M. TP.I. Newsletter or what? very impressive first issue! What was the map on page 8 showing Winnipeg as the JOHN STEIL, MCIP centre of North America? Surely Plan Canada is a journal for Manager ofPlanning all Canadians - east, west and central. Yet you decide to ID. Engineering Company Limited show Los Angeles and Miami, and Newfoundland (a whole Edmonton, Alberta province, let alone a city) does not even get included! I certain ly hope that this isn't typical of future issues. I'm sure that knowing how Plan Canada is produced is Just a note to say how much I enjoy Plan Canada's new look! interesting - but that is your problem not mine. And even if It is splendid. procurement and production cycles are interesting, is it All the best for future issues! necessary that readers know (over 2 pages) that it takes 59 days - not 58 or 60 - for Bluelines (whatever they might be) JEANNE WOLFE to be completed? School of Urban Planning Finally - book reviews - there must be many books McGill University produced on/ relating to planning each year, of which a num ber must be Canadian (you list 4 in publications received for review). Yet you spend two pages in Plan Canada reviewing a Congratulations on a fine issue of Plan Canada. Keep up the book on American neighbourhoods from the series "The good work. Population of the United States in the 1980s." I am not sug I particularly enjoyed the article on the reuse of industrial gesting that you should be so insular as to disregard anything space in Montreal. It brought back a lot of nostalgia which I non-Canadian, but I am affronted that you could not find any hope you will share with Ms. Lessard. I used to pass many of space to review a Canadian publication. the buildings mentioned/shown on my way between my This is Canada and we are Canadians - we have a home in Maisonneuve and my grandmother's in Verdun, either different culture, history and economy from the United States. by car, bus/ streetcar, or on my bicycle (which I first did Canadians have excellent examples of town and regional when I was 10 - would I now let any of my 1O year olds do it?). planning ranging from vieux Quebec to Don Mills, from the In those days, as kids, we thought the world would always stay Toronto Centred Region plan to the National Capital Commis the same these were places where people worked, then sion concept. went home to their rented triplexes in St. Henri, Pt. St. Charles, Having said the above, I hope you take the comments in a Verdun, and so on (remember Balconville?). positive light and I look forward to receiving future issues of The photo of the Knit-to-Fit factory also brought back Plan Canada! memories, even though it was reverse-pointed, and I can find STUART MCMINN no reference to it in the text. Just to the west, was Delormier Oakville, Ontario 4- PLAN CANADA, 29:3/MAY/MAI 1989 Congratulations on your first issue of Plan Canada. It is a good soit publiee prochainement dans Plan Canada de preference start; nice mix of material; readable format; interesting cover. en anglais et en frangais. Je vous prie de recevoir, Monsieur le President, !'expression RONALD M. KEEBLE, MCIP de mes sentiments distingues. Director and Professar Ryerson Polytechnical Institute LEON PLOEGAERTS, Ph.D. Professeur titulaire Universite d'Ottawa (Letter addressed to the President, CIP) Depuis plusieurs annees, les lecteurs de Plan Canada ont pu constater la deterioration progressive de la qualite de la langue fran9aise dans les textes publies. Cette question pre occupante a deja ete portee a !'attention de l'I.C.U. et de son directeur executif. L'an passe, des assurances avaient ete donnees qu'avec la nouvelle equipe de redaction, cette situa tion serait corrigee. Force nous est de constater qu'elle aurait tendance a s'aggraver. Dans le numero de janvier 1989 de Plan Canada, parmi la vingtaine de pages (sur 64) com prenant des textes frangais, on peut denombrer pas moins de 188 erreurs (voir corrections annexees) tant grammaticales, syntaxiques, semantiques que typographiques sans compter les mots inventes! Plan Canada etant la seule revue representant la profes sion au pays, cette situation inacceptable cause un prejudice a !'ensemble de ses membres qu'ils soient francophones ou anglophones. II m'appara1t peu serieux de pretendre a un quelconque rayonnement professionnel et scientifique sur le plan national, voire international si l'on est incapable de s'ex primer correctement par ecrit. Pour remedier a ce probleme, l'I.C.U. devrait serieusement considerer de doter Plan Canada d'un comite de redaction fonctionnellement bilingue et biculturel au courant autant des questions professionnelles que de la recherche scientifique pour !'ensemble du pays. lndependamment de la question de la qualite du frangais, l'annonce de la formation d'un comite de revision compose d'urbanistes de Winnipeg (voir Plan Canada 29:1, p. 3, lignes 16-19 texte frangais, lignes 3-18 texte anglais) ne m'appara1t pas comme le meilleur moyen d'optimiser nos ressources intellectuelles pour atteindre !'ex cellence de la revue. Les moyens actuels de communication par telecopieur n'exigent plus que les membres du comite soient localises au meme endroit. A defaut d'une telle solution - la meilleure selon moi - ii ne resterait plus a l'I.C.U. qu'a editer Plan Canada en anglais seulement avec des resumes en frangais et peut-etre en d'autres langues permettant ainsi une diffusion internationale plus large aux Etats-Unis et en Europe. Cette solution peut etonner, elle correspond cependant a une tendance que l'on constate dans de nombreuses disciplines scientifiques. Le prestigieux lnstitut Pasteur de Paris vient de decider tout recemment que ses publications seraient desormais publiees en anglais. Je constate egalement que dans le no 29:1, la contribution des deux seuls auteurs francophones, y compris l'editeur francophone, a ete soumise en anglais! II m'appara1t evident que la situation actuelle merite un debat aussi large que possible. J'apprecierais que ma lettre PLAN CANADA, 29:3/MAY/MAI 1989 5 EDITORIALS/EDITORIAUX homeless but also addresses the need for new HOUSING CONCERNS: program approaches. A CANADIAN OVERVIEW Note from What are the issues facing planners involved in housing? Are the issues consistent on a nation Implications Of An Aging Population wide basis or do they vary on a regional, pro Despite what appears to be a reduced need vincial and local level? Interviews with planners for subsidized housing options, two growing the Guest concerns regarding the elderly were expressed from all three levels of government and consul tants in the private sector indicated that there on a nation-wide basis. Affordability is still a were common concerns, but the issues are as problem but a substantial stock of subsidized Editor diverse as the country itself. units is available to address this need. What is not available is a variety of options to accom Nationwide Concerns modate a growing number of more moderate Insufficiency Of Adequate And income seniors seeking security from rising Affordable Housing housing costs, equity protection, and the com bination of housing and support services they Consistent themes on a national basis included require to maintain their independence. The the problem of insufficient affordable housing role of the public sector in providing these for low income households. From Newfound options may be as innovator, co-ordinator and land to Old Crow in the Yukon we still have facilitator, rather than a supplier. Innovator, in many thousands of households that do not terms of demonstrating and publicizing what have adequate and affordable housing. This options are possible, and co-ordinator /facilita situation persists despite at least fifty years of tor, in encouraging the involvement of private continuous programs of housing assistance; industry and third sector organizations, are the forty years of involvement by Canada Mort roles the public sector should adopt. Initiatives gage and Housing Corporation (CMHC), a fed are certainly under way in this area but at this eral agency with a mandate to address housing time they have only accommodated the "tip of inequities on a national basis; the efforts of pro the ageberg" as the elderly with more dispos vincial housing agencies since the 60s and able income will be one of the fastest growing 70s; and the involvement of countless numbers sectors of the housing market over the next of not-for-profit agencies. In addition, of course, several decades. we have spent billions of dollars on improving The other concern revolves around "aging the housing circumstances of Canadians. The in place" or the problem experienced by seniors problems are still very real for many house who moved into rental housing designed basi holds in Canada - a country that boasts one of cally for independent living. More than capable the highest standards of housing in the world. of living an independent lifestyle when they first took occupancy, the elderly find their health A Changing Mix Of has deteriorated to the point where they need Households In Need additional support services to maintain a satis The number of households requiring assistance factory lifestyle. Planners expressed a consid is still high but the characteristics of those most erable amount of frustration at the lack of a in need have changed. A reduced need for proper mix of housing and support services to subsidized housing options for seniors, but a accommodate these households. Shelter alone growing need for assistance to single parent is no longer sufficient, but housing agencies do families and special needs groups such as not always provide the required support serv people with disabilities, women in distress, and ices and one has to question if it is even their the homeless was a consistent theme. Chang responsibility. These services may be available ing economic and social circumstances have from other agencies in the community but the created a new mix of households that find co-ordination required to deliver them is not themselves without adequate housing, but the always in place. Housing agencies must play a appropriate adjustments in policies and pro lead role in such co-ordination but the concern grams have not kept pace with these changes. was expressed that with funding cutbacks The majority of planners expressed a desire even improved co-ordination may not solve for new programs or greater flexibility in exist the problem. Again, as we move into the nine ing programs to accommodate a greater variety ties and toward the turn of the century, we must of client groups. For example, the article by address this problem if we want to maintain the Daly in this issue highlights the plight of the independence of the elderly and avoid a very 6 PLAN CANADA, 29:3/MAY/MAI 1989 EDITORIALS/EDITORIAUX and territories. The problem of allocation was not much of an issue until the "pie" started to shrink in the early 80s. Since that time the search for an appropriate allocation model has probably consumed more federal and provincial staff time than any other issue. The appropriate data base, the criteria and variables used to assess need on a national and provincial basis, and how best to incor porate regional differences in housing costs into the allocation model have been contentious and largely unresolved issues over the last five years. Regional Issues The preceding discussion focused on themes that were common on a nation wide basis. There were many other issues raised that were significant on a regional or local basis. In Ontario the discussion quickly turned to ever-inflating housing A The living conditions of many seniors in rural areas of Canada, costs although this was more a Toronto, as opposed to an Ontario, problem. How high demand for expensive nursing increasing proportion of houses in the ever, land supply problems, accessibility home accommodation. older suburban areas will be occupied to affordable adequate housing even for by senior citizens. This raises a number moderate income households, and the The Future Of The Existing Stock of questions. Can these houses accom difficulties associated with trying to pro As expected, another common theme modate the design changes necessary vide low cost social housing for low was concern about the future of the exist to meet the requirements of an aging income people within current federal ing stock - concern not only about the population? Will changes in community guidelines in such an inflationary and condition, but also the flexibility to accom infrastructure and services provide an high priced environment were significant modate an aging population and chang environment appropriate to an aging concerns. The buoyant Ontario economy ing household structures. With respect population even if design changes to has resulted in windfall gains for many to condition, most planners felt it was houses become a reality? What zoning people, many of them seniors who are very important to address what appears and regulatory implications will planners selling a mortgage free home they bought to be a significant information gap on the have to address? Can new housing op in the 50s at a fraction of the current extent, nature and problems associated tions such as granny flats be provided in selling price but it has created a tremen with renovation and upgrading activity. aging neighbourhood areas? When sen dous hardship for many low and moder There was general agreement that re iors move to other housing options will ate income households. A booming search on the types of activity, charac the existing housing prove to be suffi economy does not solve, it only creates teristics of households undertaking reno ciently flexible to accommodate the a new set of housing problems. vation, financing and the types of firms households of the next century? Most Many planners in Quebec struggle involved should be a high priority. Re houses in aging suburban areas were with the problem of providing adequate search on the barriers to renovation and designed for the nuclear family but the housing for families in municipalities that the limitations of existing programs should nuclear family may not be as common in prefer to place their emphasis on senior also be a high priority so we can create the future. The inner city areas have citizens. Repair of the aging stock is also an environment conducive to maintaining been the focus of planning and housing a priority and there is concern that the the existing stock. The article by Ron initiatives over the past couple of decades current federal Residential Rehabilitation Corbett on Renovation Activity in Atlantic but more attention must certainly be fo Program lacks the necessary flexibility Canada focuses on many of the research cused on housing issues in aging sub and funding to address stock repair prob questions that planners feel should be urban areas in the future. lems. addressed. In British Columbia, Vancouver strug The second concern with the housing Allocation Of Scarce Resources gles with the issues associated with stock is associated with the "greying of Federal and provincial housing officials housing intensification. Expansion of ex suburban areas." It is clearly recognized also struggle with how best to allocate a isting houses or replacement of older that over the next couple of decades an declining federal budget to the provinces smaller houses with much larger units PLAN CANADA, 29:3/MAY/MAI 1989 7 EDITORIALS/EDITORIAUX has raised neighbourhood planning is sues of both a social and economic nature. In many neighbourhoods the problem is often exacerbated by the ethnic differences that correspond with the intensification process. On the prairies, particularly in Sas katchewan and Manitoba, the task of providing adequate housing for natives, both in the major urban centres and remote and northern communities com mands substantive attention. Many re mote and northern communities lack an economic base and welfare dependency is high. Housing is viewed as shelter but also as an employment support vehicle, and efforts to involve local residents in the construction, management and on going maintenance are considered im portant aspects of housing delivery. In the urban centres, the difficulties of ad A The old and the new. Improvedhousingfor Non-profit housing for families. Attractive, justing to an urban environment, learning seniors in rural Manitoba, modest housing is required to reduce the life skills that are required to adapt to stigma of living in publicly subsidized ac urban society, and poor employment commodatimi. y opportunities because of the lack of marketable skills create a complex set of problems to be addressed by housing officials. As in the remote and northern communities, housing must be more than shelter, it must be a part of a co ordinated approach that includes a vari ety of support services, and upgrading of employment skills. In the Maritimes, many concerns focus on attempts to improve the housing cir cumstances of households in rural areas and small towns. Current programs do not always address the needs of those that require assistance. Considerable ef fort is being focused on promoting the self-help approach both in the provision of new and the renovation of existing housing. Some provinces hope to rein force this self-help approach by provid ing assistance to local community organ izations with housing experience so they Summary mittee and CMHC's External Research in turn can act as a knowledgeable liai This short commentary in no way does Program, both described in this issue, son between public agencies and com justice to the scope and complexity of are vehicles being used to spearhead munity residents and use their expertise the housing issues faced by individuals the necessary research initiatives. As we to support local housing initiatives. As in the housing and planning field. It does, move toward the 21st century, we must the report of the New Brunswick Task however, highlight some of the major is address these issues to ensure contin Force on Housing indicated, many Mari sues we face on both a national and ued improvement in the housing cir time residents also view housing as regional basis. Research on these issues cumstances of Canadians. more than shelter. They feel that housing has to be a priority. CMHC and provincial TOM CARTER should and can be used as a mechanism agencies have taken steps to address Director of the Institute to achieve social and economic goals. and co-ordinate these research needs. of Urban Studies achieve social and economic goals. The National Housing Research Com- 8 PLAN CANADA, 29:3/MAY/MAI 1989 THEME ARTICLES/DOSSIER In the Atlantic Region, renovation ex incidence of housing units in need of penditures have been greater than new repair (CMHC, 1987). In 1986, according construction expenditures since 1976 to the National Housing Survey carried (CMHC, 1983, p. 36). During the 1971- out by CMHC, 14% of rural dwellings 1981 period the growth in renovation ex were in need of major repair compared RON CORBETT penditures in the- region increased at a with 8% of urban dwellings (TEEGA, p. 9). Ron Corbett is a lecturer, projesswnal faster rate than new residential construc Several reasons have been suggested planner and Senior Research Associate with the Rural and Small Town Research tion. While relative growth in renovation for the high incidence of housing inad and Studies Programme at Mount Allison expenditures fell somewhat behind new equacy in rural areas. They include: University, Sackville, NB. construction between 1981 and 1986, 1. a high degree of construction and maintenance is completed by home owners or unskilled labour; 2. building standards are not enforced in rural areas; 3. rural residents are not able to get mortgages for renovations because Rural Residential of a poorly developed real estate market; 4. building and repair costs are often high in rural areas; Renovation: 5. many rural families, particularly farm families, place less emphasis than A Case Study of Rural Homeowners urban families on dwelling mainten in Atlantic Canada ance (CMHC, 1987, p. 10 and TEEGA, p. 41 ). It is important to note that the Atlantic Region is predominantly rural and small town in nature with approximately 60% Introduction total expenditures for renovations still ex of residents living in rural or unincorporat Residential renovation is an increasingly ceeded expenditures for new construc ed areas and urban communities with important component of the construction tion. less than 5,000 population. In order to industry in both Canada and the United While new housing starts are expected provide a better understanding of resi States (U.S. Department of Housing and to decline over the next several decades, dential renovation activity in Atlantic Can Urban Development. 1987, and Canada renovation demand is expected to in ada, the Rural and Small Town Research Mortgage and Housing Corporation crease in the future. Surveys such as the and Studies Programme (RSTRSP) has [CMHC], 1987). According to the federal Statistics Canada Survey of Household undertaken a residential renovation re government's consultation paper on hous Income, Facilities, and Equipment (HIFE) search project. ing (CMHC, 1987), the industry is at pres indicate that the potential demand for ent a billion dollar industry with renovation residential renovation is substantial and The Rural Residential expenditures only slightly less than the increasing with over one million units in Research Project3 amount spent on new residential con Canada in need of major repair (TEEGA The study being undertaken at Mount struction. In 1986, renovation activity in Research Consultants, 1989).1 By in Allison University has three main focus Canada exceeded $13 billion with ex cluding minor repairs in the equation, the areas: penditures in 1987 estimated to be $15 need for renovation is estimated between 1. self-help as it relates to residential billion (Canadian Home Builders Asso 27% and 47% of all Canadian low rise renovations ciation [CHBA]. 1988.) housing stock.2 2. the need for, and impact of, local regu Renovation activity over the past dec Atlantic Canada has the highest inci lations on residential renovation; ade has been relatively stable compared dence of dwellings requiring major repairs 3. the extent to which new technologies with new housing starts which have been which is generally attributed to an aging are incorporated into renovation work, subject to large swings in market demand, housing stock. Fourteen percent of dwell and the methods used for transferring caused in part by variations in interest ings are in need of major repair (TEEGA, information on new technologies to rates. At the same time, expenditures on p. 9) in the Atlantic Region. British Colum homeowners and contractors involved renovation have increased at a faster bia, the Prairies and Ontario have the low in residential renovations. rate than new residential expenditures est incidence of dwellings requiring major The study involves surveys of four with an increase of 11 .6% between 1976 repairs (9%), followed by Quebec (11 %). major groups: homeowners, contractors and 1986 compared with a 5.1 % increase It is commonly recognized that rural and tradespeople, building supply deal for new construction (CMHC, 1987). areas within Canada have the highest ers, and building inspectors. The mailout PLAN CANADA, 29:3/MAY/MAI 1989 9 THEME ARTICLES/DOSSIER questionnaire method was used for the surveys. Purpose of the Paper There is an established view that rural residential renovation is substantially dif ferent from urban residential renovation in terms of types of activity, financing, problems and other characteristics. The purpose of this paper is to compare the responses from the homeowners' survey with established views and perceptions about rural renovation in general, and renovation in Atlantic Canada in particu lar. The paper, in light of the results of the survey, will also identify and discuss a number ot rural issues that deserve further research. Homeowners' Survey: Approach and Methodology4 A Improving the quality ofhousing in many For many rural houselwlds, financing the The homeowners' survey was the first rural oommunit:ies will require major expen renovation ofolder Jwmes is mom economical phase of the Rural Residential Study to ditures over the next decade. than building new units. V be completed. The sample universe for the survey was all homeowners in Atlantic Canada. The sample frame used in the study was the provincial tax assessment lists. The names were computer generat ed and randomly selected. The sample size of 1,506 chosen for this study ensured a statistically valid sample for the Atlantic Region. Special emphasis was placed on personalizing the questionnaire process to encourage response. Addresses were individually printed on the envelopes and also on the covering letters. Postage stamps instead of postage metering were used to avoid the appearance of a form letter. All cor respondence was personally signed. Fol low-up procedures were used extensively to ensure maximum response, including mailing a post card and a second ques tionnaire where required. The response rate for the Region was urban areas which include cities, towns, Rural respondents were generally less 57%, with Nova Scotia having the highest villages and communities (Newfound educated than their urban counterparts, response rate at 65% and Newfoundland land).6 The rural/ urban population distri with 23% of rural homeowners having the lowest at 50%. The survey response bution in the survey was very similar to post-secondary education or better, com represents a confidence level (margin of the actual population distribution for At pared with 33% of urban residents. On error) of less than 5%, 19 times out of 20 lantic Canada. the other hand, rural residents had a in repeated sampling. Rural homeowners tended to be youn higher incidence of technical training; ger than urban homeowners; 47% of 11 % of rural residents had completed Profile of Respondents 5 rural homeowners were under the age of vocational school compared with only The survey represented homeowners 45, compared with 33% of urban home 3% of urban residents. from rural areas and all urban centres owners. There was no significant differ Income levels were significantly lower with 35% of respondents from rural or ence in the proportion of rural and urban in rural areas with 50% of rural home unincorporated areas and 65% from homeowners over the age of 65. owners having incomes of less than 10 PLAN CANADA, 29:3/MAY/MAI 1989 THEME ARTICLES/DOSSIER $25,000 compared with 40% of urban 4% of urban dwellings. Surprisingly, the respondents. As illustrated in Chart 1.1, homeowners. Twenty-one percent of average household size was slightly lower the two most frequent reasons given for rural homeowners had incomes less in rural areas at 3.2 persons per house renovating within Atlantic Canada, in than $15,000 compared with 15% in hold compared with 3.3 in urban areas. both the rural and urban areas, were "to urban areas. Rural market values as determined by improve home comfort" and "regular The vast majority (88%) of home respondents were lower with an average maintenance."B The lower incidence of owners, urban and rural, lived in single of $57,434 compared with average urban rural homeowners renovating as an in family dwellings. In rural areas mobile market values of $66,463. The incidence vestment reinforces the view that rural homes were more common (9%) than in of dwellings with market values exceed areas have a more poorly developed urban areas (6%). The age of the dwell ing $100,000 was substantially lower in housing market as suggested by Hughes ings represented in the study ranged rural areas. (Hughes, 1987, p. 2). Landry, in his from less than one year to 200 years with discussion of the role of local govern an average dwelling age of 35 years. Renovation Activity ment in housing issues, notes that the Rural areas had a higher incidence of Renovation is perceived by many as the Atlantic Conservation and Investment both new and older dwellings; 26% of key to maintaining a community's hous Program, a federal government program rural dwellings were less than 10 years ing stock on a long term basis (Goldberg, to encourage energy conservation, was old compared with 18% of urban dwell 1984, p. 1 ). It is also generally accepted a tremendous success in the region ings and 18% of rural homes were over that it is more economical to renovate (Landry, 1979). The low percentage of 75 years old compared with 12% of urban existing housing than to build new units homeowners who indicated energy con homes. The higher proportion of newer (CAHRA, 1987). Reasons often given for servation as a reason for renovating dwellings is indicative of higher growth homeowners undertaking renovation on can partly be explained by the success rates within rural areas over the past their dwellings include: to look better, to of this program, although it appears to several decades (Dykeman and Corbett, reduce housing costs, and to reduce have a slightly greater impact in urban 1986). maintenance costs (TEEGA, 1989, p. 43). areas. The average number of rooms per Renovation activity within the rural Demographic and Dwe/1/ng Profile dwelling for both rural and urban respond areas was somewhat lower than urban ents was seven. Rural areas had a renovation activity.? Eighty-two percent Within rural Atlantic Canada, there was a higher proportion of dwellings that had of urban residents had renovated their more even distribution of renovation 10 or more rooms; 10% compared with dwelling compared with 76% of rural activity by age of homeowner compared with urban renovators. For example, in CHART 1.1 urban areas, renovation activity was lowest among homeowners in the 15 - 24, 65 - 74 and 75+ categories. In rural areas, however, renovation activity was highest among homeowners less than > Family Size D Total 54 years of age, including those between 15 and 24 years of age. Renovation acti • Incorporated Children leave vity was also significantly higher among D Unincorporated the rural elderly with 70% of homeowners Cl over the age of 75 indicating they had C :.:: An Investment renovated their dwelling compared with ~ 0 only 56% of the urban homeowners. C 55.6 Q) Home Comfort Rural mobile homeowners had a much a: 57.7 ... t------'48.6 higher proportion of renovation activity 0 I&. 17 (76%) compared with urban mobile home Ill Home Safety 17.6 C owners (57%). On the other hand, there 0 15.2 Ill l1I was a lower level of renovation activity Q) Improve Access a: among rural single family homeowners (76%) compared with their urban counter 52.7 Reg. Maintenance 56.2 parts (84%). t------...J45.1 As Chart 1.2 on renovation activity by age of dwelling illustrates, there were sim Energy Conserv. ilarities as well as differences between rural and urban areas. Surprisingly, the highest level of activity was not in the 0 10 20 30 40 50 60 % of Total Reasons For Renovating oldest dwellings, particularly in rural areas. The incidence of renovators was, how- PLAN CANADA, 29:3/MAY/MAI 1989 11 THEME ARTICLES/DOSSIER ever, significantly higher among rural homeowners in newer homes (83%) compared with their urban counterparts (57%). One explanation of this could be Legend that since a higher percentage of rural residents build their own dwellings, D Urban (Rowe, 1983 and Strople, 1987), a higher 57.1 <1 yr Rural percentage of rural homeowners are 83,3 moving into homes that are not complet • 84.3 ed. Completion of these homes may 2-10 yrs. account for the higher percentage of 66,7 renovation activity in that age category. CJ) :§ 88.2 Rural housing over 75 years old had 11-25 yrs. substantially lower levels of renovation 1 80 (71 %), compared with urban housing in 0 78.7 the same age category (82%). 0 26-50 yrs. QI CJ) 79.5 Type of Renovation Activity <( Chart 1.3 illustrates the diversity of reno 51-75 yrs. 80.4 vation activities carried out by rural reno vators in the Atlantic Region in 1987- 81.7 1988.9 Painting and wallpapering were > 75 yrs. 71.4 the activities most frequently listed (62%) followed by exterior painting (37%), and carpeting and flooring (33%). Generally, 0 20 40 60 80 100 the difference in renovation activity be % of dwellings renovated within each age category. tween rural and urban renovators was minor. In order to facilitate the analysis of renovation activity by type, the 23 activi ties were then recombined into four gen CHART 1.3 eral renovation categories: 1. Structure, 2. System, Legend 3. Enclosure, and PainVWallpaper 4. Finishing.10 Cabinet lnstal./Repair - 15.3 D Activity involved As illustrated in Chart 1.4, the vast CarpeVFlooring 32.5 majority of renovations fall within the fin Heating System 19.9 Electrical System ishing category, with very little difference 16.3 Plumbing System 21.6 between renovation categories for rural Built-in Appliances • 8.5 and urban renovators. One would expect Finishing Basement 15.7 that there would be more of the "Struc Remodel Rooms 24.8 ture" and "System" types of rural renova Deck/Patio 18.5 Addition to House tions given the perception that rural l:::::::J7.9 Windows/Doors 29.6 construction and renovation are of poor Add/Replace lnsul. 16.9 quality (TEEGA, p. 41 and Dennis and Exterior Paint. 37.1 Fish, 1972, p. 300). However, the data on Exterior Siding l=::::::l11.9 categories of renovation activity indicate Roofing 18.1 that the type of renovation problems Eavestrough/Fascia 20 Porch/Veranda 25.8 faced by all Atlantic Canadians are simi Foundation :::::17,5 lar. This may suggest that there may not Chimney/Flue 16.8 be a quality problem specific to rural Ventilation ::::::::::J 10 areas. Information on the primary rea Electrical Fix. 23.3 Ceiling 17.9 sons for renovating as illustrated in Chart 1.1 reinforces this hypothesis. One would 0 10 20 30 40 50 60 expect that there would be a higher per Valid Percent of Total centage of rural residents renovating to 12 PLAN CANADA, 29:3/MAY/MAI 1989 THEME ARTICLES/DOSSIER improve home safety and to improve that they had not spent any money on ity appears to be a barrier to rural home comfort. However, this was not the labour. Urban renovators spent an aver homeowners. Seventy-two percent of case; 17% of urban residents indicated age of $1,357 on labour, with 47% having rural homeowners who did not renovate that their major reason for renovating zero labour renovation costs. had annual family incomes of less than was to improve home safety compared It has been suggested that rural home $25,000, compared with 65% of urban with 15% of rural renovators, and 57% of owners are less likely to be able to homeowners. Renovation activity was urban renovators cited home comfort as borrow money from financial institutions directly related to income with the propor the major reason for renovating com because of a poorly functioning housing tion of homeowners that renovated in pared with 45% of rural renovators. market (CMHC, 1986, pp. 10, 14). The creasing as incomes increased. How findings of the homeowners' survey sug ever, more detailed analysis indicates Renovation Expenditures, gests that this is not the case. In fact, the that although low income is a barrier for Financing, and the Problem of proportion of homeowners financing their rural homeowners, 75% of rural home Affordability renovation by a mortgage was higher in owners with incomes of less than $15,000 As previously mentioned, renovation acti rural areas with 6% of rural homeowners had renovated their dwellings compared vity is a major contributor to the Canadian indicating a mortgage was their major with 61 % of urban homeowners. This economy. This is also the case in rural source of financing compared with 3% suggests that self-sufficiency and/ or Atlantic Canada. Using the information of urban homeowners. The proportion of family support may be more prevalent in from the homeowners' survey, it is esti homeowners financing their renovation rural areas but nevertheless, survey re mated that in 1987 and 1988, $595 million by personal bank loans was practically sponses suggest that affordability is a were spent on labour for rural renova identical for both rural and urban areas. major factor in determining if, and/ or tions. The total amount spent on rural In Atlantic Canada, the vast majority of when, existing adequacy problems will be renovation is estimated to be $875 million. rural and urban renovators financed addressed by rural homeowners. Thirty The average cost of materials for rural their renovations by personal savings, as eight percent of rural residents indicated renovations, $2,645, was significantly illustrated in Chart 1.5. Direct government that they could not afford needed reno lower than the $3,730 spent by urban funding programs such as the Residen vation because of other financial commit residents. This was also the case with tial Rehabilitation Program accounted for ments as compared with 28% of urban labour expenditures. The average labour only 3% of all rural renovations and 4% of homeowners. On the other hand, more costs for rural renovations was $1,028 urban renovations. urban residents indicated they could not with over 50% of renovators indicating Initial analysis suggests that affordabil- renovate because of existing mortgage payments (8%) compared with rural CHART 1.4 residents (4%). In total, 42% of rural residents had an affordability problem compared with 36% of urban home owners. It should be noted that the affordability problem in this case has Total D been defined by the respondents and as • Urban such is subjective, especially regarding the category of not being able to do the D Rural necessary renovations because of other financial commitments. In some cases, ~ 0 the problem may simply involve not having sufficient financial resources to IIll () provide basic necessities, in other cases C 0 it may simply be a matter of priorities; the respondents may be spending the money I on bigger cars, travel or other less basic C ~ goods and services.11 What is clear from the results on reno vation activities is that the major factor for rural homeowners wishing to renovate is limited financial resources. The survey responses suggest that over 100,000 rural Atlantic Canadians are in this predic ament. 0 10 20 30 40 50 60 70 Percent of Total Self-Help Self-help or the do-it-yourself sector is PLAN CANADA, 29:3/MAY/MAI 1989 13 THEME ARTICLES/DOSSIER recognized as being predominant in ren are poorly enforced, or that there are no cated that they had experienced four ovation activity by industry and govern regulations in effect (Hughes, 1987, p. 6). general types of problems: time delay in ment (TEEGA, p. 39 and Seligman, There is also the view that there is no obtaining permit; time delay while waiting 1973, pp. 1 0-23) with Atlantic Canadians consistency in inspections or code inter for inspection; increased costs; and prob having a particularly high incidence of pretations relating to renovation activity lems with meeting regulation require self-help (CHBA, p. 8) Self-help is per (New Brunswick Home Builder Associa ments. Time delays and increased costs ceived as enabling homeowners to ad tion, 1989). were the only two problems experienced dress their own housing needs, and as a The responses from the survey indi by rural respondents. means of producing improved housing cate that building regulations and stand at a lower cost (Seligman, 1973, p. 22). It ards are poorly enforced in rural areas Future Renovation is also viewed as being more common to to a much greater degree than in urban The vast majority of both rural and urban rural communities. areas. Only 16% of rural renovators respondents (80%) indicated that further According to the survey responses, indicated that a building permit was renovations were required. There was a the incidence of rural self-help was only required for their renovation compared substantially higher incidence of rural slightly higher than urban self-help. Forty with 29% of urban renovators. Surprising dwellings requiring major repairs as deter six percent of rural renovators indicated ly, however, the proportion of rural reno mined by the respondent; 8%, compared that all their renovations were done with vations that were inspected was signifi with 5% of urban dwellings.12 However, free labour, compared with 38% of urban cantly higher in rural areas. Rural ren fewer rural residents indicated they would renovators. Thirty-two percent of rural ovations were inspected 56% of the time, be making the necessary repairs within residents indicated that part of the reno compared with 37% in urban areas. the next 12 months; 39%, compared with vation had a free labour component While much has been written about 42% of urban residents. compared with 35% of urban respond the problems caused by building regula ents. Seventy-eight percent of rural reno tions, only a small percentage of rural Rural Renovation: Conclusions vations had some component of self-help renovators indicated that they experi The primary purpose of this paper was to compared with 73% of urban renovations. enced problems. Eight percent of rural examine how existing perceptions and Rural self-help, however, was a critical renovators experienced building permit views on rural renovation compared with factor in enabling the elderly and low related problems, compared with 12% of the responses of the Atlantic Canadians income families to renovate their dwell urban renovators. Urban residents indi- who participated in the homeowner reno- ings to a much greater degree than urban residents. Twenty-two percent of CHART 1.5 rural renovators who used self-help were over the age of 65 (7% over the age of 70) compared with 1 3% of urban renovators in this age bracket (5% over the age of 70). The proportion of low income self Total helpers was also substantially higher in D rural areas. Twenty one percent of the Bank Loan • Incorporated rural self-helpers had incomes of less 1------~ _ Unincorporated than $15,000, compared with 10% of 72 4 D urban self-helpers. Forty-eight percent Savings 72.8 :fl i------~ 71.6 of all rural self-helpers had incomes of ~ ::, less than $25,000 compared with 22% of 0 Federal Grants Cl) ~ :l urban self-helpers. .6 Cl C Local Building Regulations ·u Provincial Grants C Ill Building regulations are often perceived C ti: by private industy as being costly and Credit unproductive (Dillon, 1987 and McLeod, 1988). Building codes and zoning regula tions are viewed as limiting the renovation Loans Family/Friends opportunities relating to extending the 4.2 life of older buildings (Murray, 1983, p. Cash 4.4 13) and/ or impeding the ability of existing 4 buildings to adapt to changing market conditions (Goldberg, 1984, p. 33). There 0 20 40 60 80 is a common perception within rural At Valid Percent of Financing Source lantic Canada that building regulations 14 PLAN CANADA, 29:3/MAY/MAI 1989 THEME ARTICLES/DOSSIER vation survey undertaken by RSTRSP in How, and to what extent, are building ards and the high incidence of self-help 1987 -88. The results of the survey as regulations being enforced in rural Atlan suggests that a quality problem may exist. discussed in the paper reveal both simi tic Canada? Are there any changes that On the other hand, rural respondents larities and differences. need to be made in the present regulatory that used paid labour indicated a very The survey results reinforce other structure and, if so, what are they? high level of satisfaction with the quality sources, such as Statistics Canada and In several areas, survey results differ of renovations. There is also research CMHC, which have demonstrated that from existing views on rural renovation. carried out in the Atlantic Region that the incidence of dwellings requiring major Rural dependence on mortgages as a indicates that the level of quality among repairs is higher in rural areas. The major source of financing was substan self-lielpers is in fact quite high (Rowe, responses regarding future renovations tially higher than with urban renovators. 1983). This issue also requires more also indicate that this gap will remain into This suggests that the view of discrimina research. the future, at least in the short term, be tory financial practices for mortgage In conclusion, the survey has rein cause of the lower proportion of rural lending in rural areas is not applicable to forced a number of existing views regard homeowners in the survey who intended the Atlantic Region in general. Given the ing rural renovation, suggests that other to renovate. current view of the rural renovation views about rural renovation are not Previous information on rural renova problem one would expect that the types generally applicable to Atlantic Canada, tion has suggested that rural areas have of renovation activity carried out in rural and suggests that elderly rural home a substantially higher incidence of older areas would be substantially different owners and low income homeowners dwellings that are more liable to have an from that in urban areas. However, as are better able to deal with housing adequacy problem. The homeowner sur previously discussed, this was not the condition problems than their urban coun vey indicates that this is the case in case as there was very little difference in terparts. The survey responses also Atlantic Canada, as illustrated by the fact types of renovation activities. suggest a number of critical areas and that rural areas have a higher proportion The survey did identify one distinctive issues that require further research. of dwellings over 70 years old. The feature of rural renovation activity which results of the survey strongly suggest is not specifically mentioned in the litera Acknowledgements that the aging rural housing stock may ture, although it is related to the issue of I would like to acknowledge those who not be receiving the same homeowner rural self-sufficiency (Rowe, 1983 and contributed to this paper: Chris Terry and care, in terms of regular maintenance Nicholls, 1980). A significantly higher Will Dunning of CMHC for their contribu and renovation, compared with urban proportion of rural low income and elderly tion to the development of the survey areas. This is supported by the fact that homeowners were able to renovate their instrument; my colleagues Floyd Dyke rural dwellings over 51 years old had homes, which is an indicator of rural self man and Keith Cossey, for their construc substantially lower rates of renovation sufficiency and self-reliance and sug tive comments on previous drafts; and activity than urban dwellings in the same gests a strong network of support sys Karen Estrabrooks, who did a superb job age category. This suggests that the tems among rural homeowners. This of managing the survey and putting to issue of rural renovation is one that view is strengthened by the substantially gether the charts. deserves further research, which should higher percentage of rural low income include an in-depth analysis of the bar and elderly homeowners that used self Notes riers to addressing the problem, and help in their renovations. The significant 1. Activities such as fixing or replacing defec existing public policy and programs relat contribution that self-help played in the tive plumbing, or electrical wiring, structural ing to renovation. Some of the key renovation activity of low income and repairs to walls, floors, or ceilings, etc. (1981 questions that the research should at elderly homeowners deserves closer Census Canada Definition). 2. Activities such as fixing or replacing miss tempt to answer would include: does the attention. The results indicate that self ing or loose floor tiles, bricks, shingles, defec rural renovation problem simply involve help can play a greater role in addressing tive steps, railings, siding, etc. (1982 Census low incomes, or are there other factors the adequacy problems of the rural poor of Canada definition). which are a part of the problem such as and elderly. The issue of self-help, and 3. This paper provides a preliminary insight regulatory barriers, absence of skilled how it can be used to address housing into a more comprehensive analysis of the labour or low skill levels of homeowners? inadequacy, is one that needs further Residential Renovation Industry in Atlantic Is the problem primarily related to an research. Such research would include Canada being completed by Keith Cossey aging housing stock, or is it a quality an examination of problems and barriers with the Rural and Small Town Research and problem that runs across all categories? to rural renovation self-help activities, as Studies Programme. A complete overview of The survey also reinforces the view well as benefits and solutions. the renovation study will be published by Rural and Small Town Research and Studies that building standards are poorly en One of the major issues that the Programme, May-June 1989. forced in rural areas. More research survey was unable to address in detail 4. A more complete description of the meth needs to be carried out on this issue. In was that of the quality of rural renovations odology is found in the Residential Renovation particular: how is the quality of rural being undertaken by homeowners either Report, Rural and Small Towns Research renovation being influenced by the exist through self-help or paid labour. The low and Studies Programme, 1989 (forthcoming). ing regulatory structures in the region? level of enforcement of housing stand- 5. Highlights of the Homeowners' survey are PLAN CANADA, 29:3/MAY/MAI 1989 15 THEME ARTICLES/DOSSIER available in The Residential Renovation In Introduction lumbia, Technical Report No. 13. Ottawa: dustry in Atlantic Canada: Preliminary High Economic Council of Canada. lights Based on Frequency Runs and Selected Building Technology Inc., Rehabilitation Tech Hughes, Doug H., 1987, "Housing Accessibili Cross Tabulation of the Homeowners Survey, nology: A State of the Art Review. ty Present and Future Issues in Atlantic published by Rural and Small Town Research CMHC, 1987, Housing in Canada 1945 to Canada" in Corbett, Ron, ed. 1986, Housing and Studies Programme, Mount Allison Uni 1986: An Overview and Lessons Learned, Accessibility: Present and Future issues in versity, 1989. Ottawa: CMHC. Atlantic Canada, Sackville, N.B.: Rural and 6. For the purposes of this paper urban is __, 1987, A Consultation Paper on Hous Small Town Research and Studies Pro defined as including all incorporated places ing Renovation, Ottawa: CMHC. National gramme (RSTRSP), Mount Allison Univer including cities, towns, villages and commu Residential Renovation Study, Ottawa: sity. nities (Newfoundland). Rural is defined as all CMHC. Kalman, Harold, 1980, The Sensible Rehabili unincorporated places. Villages in Nova Sco __, 1986, Evaluation of the Residential tation of Older Houses, Ottawa: CMHC. tia, although not defined as incorporated Rehabilitation Assistance Program, Pro Landry, Paul J., 1989, "The Role of Local places, are included as urban for purposes of gram Evaluation Division, Ottawa: CMHC. Government in the Transfer of Technology comparison. Canadian Association of Housing and Re and Information" in Corbett, Ron, ed., 1989, 7. Renovation was defined in the question newal Officials (CAHRA), 1987, Residential Addressing Housing Issues: The Role of naires as any maintenance, repair, permanent Rehabilitation in Canada, 19th Annual Local Government, Sackville, N.B. RSTRSP, alteration, or addition made to a home, and Symposium, Ottawa: CAHRA. Mount Allison University. does not include property improvements Canadian Home Builders' Association Mitchell, Harris, 1983, New Life for an Old such as landscaping, paving, or other site (CHBA), 1988, The Renovation Sector of House, Ottawa: CMHC. work. the Canadian Home Building Industry: A Murray, Charlotte C., February, 1983, Ap 8. The percentages add up to more than Discussion Paper, Ottawa: CHBA. proval Process for the Applications Related 1 00%, since respondents could give more --, March, 1988, Development of the to the Rehabilitation of Existing Buildings, than one answer as reasons for renovating. Renovation Sector of the Canadian Home External Research Program, Ottawa: 9. The chart depicts the nine most frequently building Industry: A Strategic Plan, Ottawa: CMHC. mentioned activities listed by at least 20% of CHBA. New Brunswick Home Builders Association, respondents. Activities that were included in Clayton Research Associates Ltd., February, 1989, Letter to members, dated February the questionnaire but not in Chart 1.1 were: 1989, Residential Renovation Data. Report 1989. cabinet installation and repair, heating system, prepared for CMHC. Nicholls, William M., "Strategies of Self-Reli electrical system, built in appliances, finishing Corbett, Ron, ed. 1986, Housing Accessibility: ance, Co-Reliance and Self Sufficiency basement, addition to house, adding/replac Present and Future issues in Atlantic Cana and their Meaning for Rural Families in the ing insulation, exterior siding, roofing, founda da, Sackville, N.B.: Rural and Small Town 1980s" in Approaches to Rural Develop tion, chimney, ventilation systems, deck or Research and Studies Program (RSTRSP), ment, Guelph, Ontario: The University patio, and ceiling. Mount Allison University. School of Part Time Studies and Continuing 10. "Structure" includes additions to dwelling --, ed., 1989, Addressing Housing Is Studies, University of Guelph. and foundation. "System" includes heating, sues: The Role of Local Government, Sack Rowe, A. 1983, Prince Edward Island Resi electrical, plumbing, chimney, and ventilation ville, N.B.: RSTRSP, Mount Allison Universi dential Financing and Construction Survey, systems. "Enclosure" includes windows/ ty. External Research and Educational Sup doors, insulation, exterior siding, and roof and Dillon, Residential Construction Regulatory port Division, Ottawa, CMHC. roof shingles. "Finishing" includes painting/ Reform Program Literature Search, Fed Scanada Consultants, 1979, The Potential wallpapering, cabinet installation/ repair, car eration of Canadian Municipalities. Market for Residential Renovation in Can peting or flooring, built in appliances, finishing DPA Group Inc., 1987, Final Report: Nova ada: A Pilot Study of Halifax, Ottawa: CMHC. basement, remodelling room, deck or patio, Scotia Residential Renovation Industry TEEGA Research Consultants Inc., January, exterior painting, porch/veranda/ steps, elec Study, Ottawa: CMHA. 1989, A Review of Research on Residential trical fixtures, ceiling, and eavestrough. Dunning, Will, 1986, Housing Needs - A Renovation, A Draft Report Prepared for 11. It could be argued that this is not a true Canadian and Regional Perspective, in Research Division, CMHC, Ottawa: measure of affordability in light of the objective Corbett, 1986, Sackville, N.B.: Rural and CMHC. definition which is 30% of total income, and Small Town Research and Studies Pro Seligman, Richard, June, 1973, Self-Help only those who would be paying in excess of gramme, Mount Allison University. Housing: The Local Initiatives Program, 30% to address the adequacy problem have Dykeman, Floyd W., and Corbett, Ron, 1986, Ottawa: CMHC. a "true" affordability problem. However, this A Matter of Record: A Review of Population Strople, Geoff, 1987, Perspectives on Com argument ignores other problems or needs Changes and the Implications for Rural munity and Housing: An Overview of a that Canadian families face, e.g., transporta and Small Town Canada and the Atlantic Recent Survey of Rural and Small Town tion, education, dental, etc., which are as im Region, Sackville, N.B., Rural and Small Residents of Atlantic Canada, Sackville, portant as adequacy problems and, in many Town Research and Studies Program, N.B., Rural and Small Town Research and cases, deemed more important in the family Mount Allison University. Studies Programme, Mount Allison Univer budget. Goldberg, Michael A., 1984, Government sity. 12. Major repairs were defined in the ques Assistance and the Rehabilitation of the U.S. Department of Housing and Urban De tionnaire as structural problems with the Existing Housing Stock, Ottawa: CMHC. velopment (USHUD), 1987, Housing Re foundation, walls or roof (sagging or leaning), Hamilton, S.W., 1981, Regulation and Other habilitation: Programs, Techniques, and parts of the structure rotting, expansion of the Forms of Government Intervention Regard Resources, Office of Policy Development dwelling, etc. ing Real Property, University of British Co- and Research, Washington, D.C.: USHUD. 16 PLAN CANADA, 29:3/MAY/MAI 1989 THEME ARTICLES/DOSSIER increased in severity since 1980. The homelessness, it is necessary to move traditional response to homelessness, beyond the emphasis on "special need such as emergency and short term shel groups." Focusing on so-called special ters, therefore, requires critical rethink needs has two unfortunate consequenc ing. Toward that end, the following recom es. First, public officials tend to limit cer mendations are intended to stimulate tain programs and funding to those with particular requirements, such as the phy GERALD DALY discussion and action. sically or mentally disabled. Second, Gerald DalY, MCIP, teaches urban and regional planning in the Faculty of Basic Issues when admission to housing and social Environmental Studies, York University. The dilemmas associated with home- service programs is predicated upon ill ness, alcoholism or drug dependence, individuals tend to adopt the behaviour patterns necessary to gain entrance. Moreover, once admitted, they must re main "ill;" if they are rehabilitated, they are forced to move on. There is no incen No Pla£e Like Home: tive to recover. Despite stereotypes to the contrary, Dealing with Homelessness those who are homeless now are dis tinguished mainly by their heterog0neity. in Canada They are a reflection of society at !prge: families, single mothers and children, minorities, runaway youth, low income elderly individuals, and those suffering In comparison with New York, Chicago lessness are systemic, rather than the long-term unemployment. Some, like bat and Los Angeles, the extent of homeless result of individual failure or behavioral tered women, hidden from public view, ness in Canadian cities appears to be disorders. Many of the problems in recent are particularly vulnerable, and are often minimal. As a result, planners, politicians years are attributable to economic forces, ignored or left behind by the system. and others concerned with urban society which have led to high levels of unem have generally ignored this issue. Al ployment in certain cities or regions or Range of Programs though relatively few Canadians find it among particular groups, and to a gener Accordingly, a range of co-ordinated pro necessary to sleep in the streets, home al lack of affordable housing for low and grams and services is required to deal lessness is a reality. People are without moderate income households. Any pro with the multi-faceted nature of this di adequate shelter in depressed areas, posed solution, then, must deal with both lemma. Beyond the obvious need for where unemployment is high and public of these basic issues. permanent housing, these programs resources limited. But there are also Definition should include advocacy and informa tion centres, job training and counselling, thousands, in cities like Toronto where The definition of homelessness needs to education, a variety of health schemes, the economy is booming, who cannot be broadened, not just statutorily, but and outreach projects (aimed at youths obtain affordable housing. also with respect to the scope, type and and adults) to ensure that homeless Homeless people are not necessarily delivery mechanisms of services offered. people are provided with access to health aimless drifters, old winos, bag ladies Homelessness means more than simply care and community services. and drug addicts. Many are single moth the absence of shelter. The definition ers with young children, who subsist on should include those vulnerable, at risk, Safety Net welfare and cannot find any rental ac or potentially homeless, including those Moreover, the safety net of housing, commodation within their means. Others without security of tenure. The definition health and welfare benefits must be ex are abused young people, fleeing intoler adopted by the United Nations, which tended so that it will catch people before able domestic situations. Some are bat includes people literally living on the tered women. A number are elderly indi they fall over the edge. This form of crisis streets as well as people living in grossly intervention will result in considerable viduals on low fixed incomes, who are inadequate accommodation, may cer unable to cope with rapidly increasing economic savings, not to mention sub tainly be appropriate. Moreover, the "right" stantial social benefits as well. living costs. Many are the "deinstitution to adequate housing, like the right to alized" mentally ill. They all share the education and health care, should be Role of Government brutal, pointless life of poverty in emer universally recognized and accepted in gency shelters and on the streets. A co-ordinated effort among all three practice. The problems underlying homeless levels of government is required in order ness, which represent institutional failures Characteristics to ensure that all segments of the home on a massive scale, have dramatically In dealing with the issues surrounding less population are included within the PLAN CANADA, 29:3/MAY/MAI 1989 17 THEME ARTICLES/DOSSIER scope of publicly supported projects. Federal involvement on a continuing basis is essential - to fund demonstra tion projects, to subsidize operating proj ects and programs, and to support re search, particularly into means of pre venting homelessness. Provincial governments can assume an active role in the creation and support of innovative housing schemes as well as the funding of municipal and non profit programs. Examples of this sort of involvement include Nova Scotia's Hearth Homes project in the Annapolis Valley and the Halifax-Dartmouth Demonstra tion Project, Quebec's proposals to de velop long-term solutions to the housing problems of the homeless, and Ontario's Project 3000, designed to increase the supply of affordable housing for low income households. It should be noted that all of these projects also receive funding from the federal government. CREDIT: WINNIPEG FREE PRESS Municipal governments can play a major role in devising and carrying out to avoid eviction or foreclosure. Such Private Sector Involvement local public developments and joint pub intervention is far more humane - and Government should also encourage the lic/ private projects (a prominent exam less costly in economic and social terms participation of the private sector with ple is Winnipeg's Core Area Initiative). - than waiting for the onset of homeless legislation which permits development Local agencies can also greatly assist ness before interceding. Municipal gov of housing by employing such devices the process of providing affordable hous ernments, in particular, have an obliga as mortgage-backed securities. In gen ing by instituting "one-stop application tion to preserve single room occupancy eral, more attention should be given by processing," by taking steps to break units, rooming houses, and other low the public and private sectors to innova processing log-jams, and by accepting cost housing. Local government should tive joint programs which facilitate crea their "fair share" of housing for low in also ensure, in co-operation with the tion of affordable housing. come singles and families. voluntary sector, that group homes and All units of government can also par other appropriate accommodations are Involvement of the Homeless ticipate by providing vacant or underuti provided for those now forced to use Too much is done "to" or "for" the home lized public properties and institutions for emergency shelters. less. Many homeless people see them housing the homeless. (An example is selves as a valuable resource, willing Vancouver's St. James Powell Place, Role of Non-Profit and Non and able to participate in the design, which provides transitional housing for Governmental Agencies planning, and even construction of their women and children; built on city-owned There is also a significant role for non own housing. They should be encour land, it was funded by the provincial and profit and non-governmental organiza aged, in a supportive environment, to federal governments.) Social housing tions, such as Reseau d'aide in Montreal, determine their own future. developers should be provided with ac the Downtown Eastside Residents Asso cess to potentially surplus lands owned ciation in Vancouver, and Edmonton's Shelters by the federal, provincial and municipal Inner City Housing Society. These groups Emergency shelters are not an appro governments. are extending their activities to include priate response to problems of home A related concern is the preservation advocacy and lobbying, as well as the lessness. Those who use such ware of affordable rental housing and the pro development and management of per house-like facilities do so because there tection of tenants. The application of manent housing alternatives. This "third is no available alternative. In the summer "just cause" eviction ordinances, for ex sector" must be involved because public time many of the homeless opt for sleep ample, has been instituted by some local housing and conventional market dwell ing outdoors rather than subjecting them governments to safeguard tenant rights. ings are not available to many of the selves to the rank squalor of an unventi In addition, temporary assistance should homeless or potentially homeless. Gov lated hostel. Shelters also perpetuate be provided to renters and homeowners ernment should assist these organiza problems by "maintaining" these individ experiencing short-term crises, in order tions with financial support. uals in the revolving door syndrome. The 18 PLAN CANADA, 29:3/MAY/MAI 1989 THEME ARTICLES/DOSSIER experience of New York, now spending tres have been successfully employed in community facilities. Organizers must over a quarter of a billion dollars annually Britain for the past 20 years; they fulfil a address the question of co-ordination of on shelters and welfare hotels, dramati useful function and are now funded by these factors, and whether signing up for cally illustrates the futility of programs both central and local governments. such services will be obligatory in order limited to emergency shelter. As soon as to obtain housing and/ or to participate in beds are added, more homeless individ Existing Stock other programs. uals join the queue. A feasible solution for many cities is to There is no panacea for the issue of make better use of the existing housing Spatial Distribution homelessness. Those searching for a stock. It has been estimated, for exam Deinstitutionalization policies must be quick fix will be disappointed. Agencies ple, that Toronto has several hundred revised to ensure that adequate com involved in the provision and funding of thousand extra, unoccupied bedrooms, munity facilities and services are avail housing and social services must make some of which could be used by board able in all geographic regions. Similarly, a long-term commitment to alleviate ers or roomers - as is now done illegally group homes and transitional housing homelessness. in some areas of the city - if anachron should be spatially distributed rather istic zoning and building codes were than being concentrated in the low Locally Devised Programs modified. It is also possible to bring back income areas of major cities. The nature of problems, and the range of to life certain non-residential buildings, Clearly, this is easier said than done. possible solutions, vary from place to such as vacant schoolhouses, which The existence of institutional barriers place. What works in Vancouver, British are structurally sound, are no longer cannot be denied. But, as demonstrated Columbia, will not necessarily be appro needed, and are adaptable to residential by recent experience in Ontario, munici priate for Sydney, Nova Scotia. Locally use. palities will participate when the provin devised programs or projects are best. cial government indicates its firm support This does not, however, preclude the Housing Characteristics for such equitable distribution by with sharing of information. At present, too The questions of housing size, scale, holding funds from unco-operative local much is done on an ad hoc basis; more physical design and management must governments. emphasis should be placed on the shar be addressed. Government involvement In summary, programs should be lo ing of information and results. Toward often means large, bureaucratized proj cally devised, for particular groups in par this end, the Canada-wide Housing Net ects. These seldom work. Small clusters ticular settings, usually small in scale, working Project has been established to are needed, as in the case of self-man designed and managed by residents share information about innovative pro aged group homes (with 5 or 6 occu where possible, and assisted by special grams and to advocate self-help housing pants, like those created by the Christian ized or professionally trained staff rather and facilitative (i.e., tenant) management. Resource Centre in Toronto), where the than relying solely on volunteers. For residents set the house rules, screen some homeless people, decent housing Advocacy and Advice new tenants, and determine their own alone will suffice. Many, however, have An essential reform is the introduction of destinies. The question of participation in multiple problems. For such individuals housing advice centres. These facilities design and planning decisions is particu and households, housing must be linked serve a real need in providing both infor larly important for those who are handi with education, training, and counselling mation and access for those without capped. programs, as well as with health and knowledge or power. Staff at these cen community services which are readily tres intervene and act as advocates for Location available to those who are homeless. the homeless with local authorities and A key issue is housing location with re with social service agencies. Similar cen- spect to transit, social services, and PLAN CANADA, 29:3/MAY/MAI 1989 19 THEME ARTICLES/DOSSIER identifying key areas for research, ensur Studies (University of Winnipeg), and the ing more complementary research, striv Rural and Small Town Studies Programme ing for more relevant and useful research, (Mount Allison University). Due to the and enhancing the awareness and appli many viewpoints represented, much of cation of research results. the detailed planning and discussion One objective stressed by the found takes place at the smaller working group ing members was to encourage co-oper level. TONY WELLMAN ation in research. This objective has Consistent with the intent of the found 1lmy Wellman is the Co-ordinator of the resulted in the establishment of working ing participants, the atmosphere at the National Hausing Research Cmnmittee. groups in specialized areas in order to meetings is informal. At full committee meetings, there are reports from the working groups, and discussion of other research projects being carried out by the members. Representatives also dis cuss future plans of their own organiza tions, and plan future directions and The National Housing activities of the Committee. In recent full committee meetings, guest speakers have been included on the program to provide a fresh perspective with speak Research Uommittee ers from Canada, the United States and Sweden featured at the last three Com mittee meetings. One need identified as high priority by Back in 1985, when the federal govern map out research requirements more the Committee was that of increasing ment of the day went through an exten precisely, and, where appropriate, to pool our understanding of the process of tech sive consultation process on housing, their efforts on specific projects. Working nology transfer in Canada. The Commit the discussions confirmed what many in group meetings have been held to dis tee felt that a greater awareness of the the housing sector had felt for years, cuss research on such areas as renova impediments and the factors conducive namely, that there was a need for more tion, special housing need, technological to the process would assist government co-ordination among the various actors innovation, housing the elderly, and hous and industry to create an environment in the housing field with regard to re ing data requirements. supportive of transfer and diffusion of search. At full committee meetings, industry innovations. A steering committee was Canada Mortgage and Housing Cor interests are articulated by representa established to develop specifications for poration (CMHC) took the initiative to tives of the Canadian Homebuilders As the research, select a consultant, and develop some options on how this could sociation, the Canadian Manufactured manage the project. The project has re be achieved, put them together in a dis Housing Institute, the Canadian Institute cently been completed, and provides a cussion paper, and then sought reac of Public Real Estate Companies, the unique example of co-operation in hous tions from the different interests in the Urban Development Institute of Canada, ing research. housing sphere. and !'Association provincial des con In two other areas, renovation and spe The fruit of this consultation was the structeurs d'habitation du Quebec. As cial need, projects have been carried out National Housing Research Committee the principal voice of the residential con to review and synthesize the research in (NHRC), which met for the first time in struction industry in Canada, the Cana the field, identify gaps, and propose fruit December 1986, and has been active dian Homebuilders' Association has been ful areas for future research. Members ever since. The National Housing Re particularly active in NHRC's working assisted in the development of the terms search Committee (NHRC) is a body group level. of reference, the selection of consultants, which typically meets in full session twice The Consumers' Association of Can and the review of interim reports. yearly. It is made up of representatives of ada, the Canadian Council on Social The diverse input in co-operative ven industry associations, provincial govern Development, and the Co-operative tures should ensure that the research is ment housing corporations or depart Housing Foundation of Canada provide of improved quality, more relevant, more ments, The Federation of Canadian a consumer and social viewpoint at the widely read, and better tailored to the Municipalities, federal government de meetings. These groups are combined intended audience. Having the Director partments/ agencies, and consumer and with representatives from the three levels of the Research Division at CMHC as social groups. of government, the Canadian Standards the Chairman of the National Housing The objectives which the Committee Association, the Canadian Housing Re Research Committee (a decision made agreed upon at the first meeting include newal Association, the Institute of Urban by the participants at the first meeting), 20 PLAN CANADA, 29:3/MAY/MAI 1989 THEME ARTICLES/DOSSIER ensures that CMHC is highly responsive tacts continue on matters of mutual inter recently completed research by the to priorities discussed at the Committee est beyond the meetings themselves. A members. in developing its own annual research bi-annual newsletter is produced to keep If you would like more information on plan. members informed of the progress on the Committee, contact Tony Wellman, The face to face contacts and dialogue Committee activities and to report on Co-ordinator, National Housing Research at meetings have unquestionably in other matters of interest to Committee Committee, Room 609, CMHC National creased the understanding of the points members. In addition, a compendium is Office, Montreal Rd., Ottawa K1 A OP?, or of view and interests of the different par produced periodically providing com call (613) 748-2338. ties in the housing sector, and these con- prehensive information on current and PLAN CANADA Journal of the Canadian Institute of Planners Would you like to reach the Canadian Planners with your ad, for an affordable price? It's possible if you buy an ad in PLAN CANADA. This journal is published bi monthly and is sent to 3,300 Canadian members and 600 subscribers worldwide. The prices range from $400.00 (CON) for a full page ad, to $65.00 (CON) to appear in the Professional Di rectory. You can also benefit from a rebate on a long term contract (3 and 6 issues). For more information on advertising and sub scriptions, contact: TRIACOM INC. Box 54, St-Boniface Stn. Winnipeg, Manitoba CANADA R2H 384 Tel.: (204) 231-0588 Fax: (204) 233-5790 PLAN CANADA, 29:3/MAY/MAI 1989 21 THEME ARTICLES/DOSSIER First, in many cases, the transaction Activity on New Housing: from which we can get the value of the Numbers and Value dwelling involves land as well. We would Figures on new houses being built start like to separate these values, both be with the Building Permit Survey. This cause it is only the value of the dwelling survey, the results of which are published that contributes to economic activity, monthly,1 collects from almost every and because the behavior of the different municipality in Canada the number of values is interesting in itself. Secondly, ROBIN LOWE dwellings (categorised as single, double, because housing cannot, for the most Robin Lowe is Chief of the Goods and row housing, apartment or cottage) for Services Division at Statistics Canada. part, be moved around, location is a which permits have been issued and their expected construction cost. When added up over reasonably large areas, the movement of these totals can give an early indicator of what is happening to new housing activity. They also act as a guide to Canada Mortgage and Housing AGuideto Corporation (CMHC), which carries out a survey of housing starts, completions, units on which work is in progress, and units that are complete and still unoccu Hous~ Statistics pied. The survey is carried out monthly in areas where the population is over 10,000, and quarterly in the rest of Canada. at Statistics Uanada These figures are authoritative for the numbers of dwellings built, and are avail able for the 26 Census Metropolitan Areas ( CMA) and their municipalities, as Because of the special nature of housing, significant statistic. The economic condi well as for many other urban centres several major independent surveys gov tions that apply to housing can vary from and, of course, for the provinces and erning different aspects of the role it place to place. Canada? However, for detailed informa plays in Canadian life are carried out. These considerations apply equally to tion on exactly where within smaller Building new houses and apartments is non-residential construction, but housing urban and rural areas units are being an important part of economic activity is distinguished further by the fact that its built, the permit data are still valuable. and, as such, it warrants individual atten rental or purchase is the most important Results from the permit survey and tion. Because new dwelling units can be expense of most Canadian households, the starts and completions survey are counted, their number as well as their so that its relationship to the people that combined to estimate the value of work value are of interest. It is also important buy, occupy and dispose of it is an put in place, which is incorporated in the that we know something about the indus important part of the description of Cana Canadian System of National Accounts try that produces them. dian society. Historically, in Statistics (CSNA). The starts, valued according to Unlike most goods, housing is not Canada, these different interests have the building permit data, are included in something that is used up immediately, been met separately, and there are five the Accounts on a time schedule ac so we are interested in what happens to main centres of survey activity covering cording to the type of structure being the stock of housing through time. One the following areas: housing construc built. Together with the value of capital of the things that can happen is that tion activity, the nature of the construc work on existing buildings, this comprises more work is done on it, and depending tion industry, households and their rela the total fixed capital formation on resi on whether the work is just repair, or tionship to the housing they inhabit, dential construction in the CSNA, which whether it is renovation, an addition or a prices, and the Census of Population is published quarterly for Canada and conversion, its value may be added to and Housing which provides benchmark each province.s The building permit sur the stock. Of course, we are also interest data for many social and economic vey also collects data on work to be ed in who carries out this work, whether it questions. done on existing buildings, but because is the same industry that builds new The chart shows the main surveys so much is done without a permit, these housing or someone else. and some of the relationships between results are not very useful in estimating Two other aspects of housing prompt them. In the rest of this paper, the major that work. In fact, renovation and repair further statistical questions. They both outputs of these surveys will be de work purchased or done by owner derive from the fact that a house cannot scribed, together with references to more occupiers is estimated from Family Ex be separated from the land it stands on. detailed sources. penditure Surveys, which will be de- 22 PLAN CANADA, 29:3/MAY/MAI 1989 THEME ARTICLES/DOSSIER scribed in more detail later. In these calculated by type for Canada and each primarily in residential construction. Most surveys, expenditures on the dwelling is province. of these are small businesses, operating just one group out of many types of ex in only one area. Statistics are available penditures, but starting with a survey for The Construction Industry by province, by industry specialization, 1987, regular surveys will concentrate Not all construction work is done by the and by the size of operation. on housing expenditures alone. Recent construction industry. Homeowners carry data indicate that the money spent on out a lot of work themselves, particularly The Movement of Prices for existing dwellings is approximately equal renovation and repair work. A lot of bus Housing Work each year to that spent on new construc inesses belonging to other industries Pricing renovation and repair work is tion. also use their own workforces to do difficult, as there is so much variety in the construction work; some even build their kinds of jobs carried out. At present, the The Stock of Houses own houses. Real estate operators in measures used both in the Consumer Keeping track of the stock of houses particular do a lot of their own construc Price Index (CPI) and in the National begins with the Censuses of Population tion. Nevertheless, most residential con Accounts are based on the movement and Housing, which collect details for struction work is done on contract by of the prices of construction materials, finely defined geographical areas.4 Re businesses specializing in construction, and of construction union wage rates sults from the surveys of starts and and annual surveys describe the nature (which may be reasonable long-term completions, and permits issued for con of these businesses, the value and type indicators of the movement of all types of versions and demolitions, are used to of work they do, and their operating and labour costs in residential construction, update the stock figures annually, by financial statistics.6 General contractors but do not react to short-term market province, for single detached and for and developers are classified as residen influences). multiple-unit dwellings.s Using Census tial or non-residential, as are special For new houses, however, builders ratios as benchmarks, these estimates trade contractors, to whom much work is are surveyed. Price indexes showing the are also split into housing for sale or for subcontracted. Often, many subcontrac movement of prices of houses built by rent. The movement of the stock esti tors act as prime contractors working large and medium-scale builders are mates matches fairly well the differences directly for project owners, excluding published monthly for most Census Met in successive Censuses, and can be a general contractors/ developers from ropolitan Areas and a few Census Ag good guide, at the provincial level, of much repair and renovation activity. Of glomerations (CA).7 Adjustments are what the available stock of houses is at 138,000 firms in the construction industry made for the changing quality of houses, any particular point in time. The value of in 1986, there were about 20,000 general in order to produce a clean measure of the housing stock, including the effect of contractors and about 78,000 special price change. (The movements of build renovations and improvements, is also trade contractors classified as being ing permit averages reflect changes in ECONOMIC QUESTIONS NUMBER AND TYPES OF DWELLINGS SOCIAL QUESTIONS 1 I , HOUSING Census CSNA Building - Family ACTIVITY of I~ Value of Permit Expenditure Construction Housing Added Survey Surveys Quantity of Housing Price I~ Housing Added - Indexes Starts and Completions Census of l l Population 'W' HOUSING Value and Numbers of ~ and Housing Household STOCK Quantity of the Housing Facilities and Stock Stock Equipment Survey PLAN CANADA, 29:3/MAY/MAI 1989 23 THEME ARTICLES/DOSSIER the nature of the house, being built so concerning the number of rooms in the may be in the data. If the results of only they cannot measure price change dwelling a question about the number of one survey are being used, these ques alone). Indexes are computed for the bedrooms may be added. tions are usually addressed in the rele dwelling with the lot, and estimates are vant publication. When combining statis made for the price movement of the Households and Spending on tics from different surveys, however, there house and of the serviced lot separately. Housing are additional complications, since con Prices of new houses do not usually Family Expenditure Surveys are carried cepts may be different and terms may fluctuate as much as for existing houses, out at intervals of approximately two not be constant from one survey to although over the long term they tend to years. They are sample surveys, and the another. Users are encouraged to contact move similarly, and even in the short geographic areas they cover vary, al the people listed below for advice on term the variation in different geographic though in 1982 and 1986 they covered combining statistics from different sur markets can be readily seen. It should the whole country. They survey all expen veys. not be assumed that the price move ditures for a given calendar year, and Work is being carried out now at ments for large urban areas apply in the since, like Census, they collect descrip Statistics Canada to bring together the smaller urban centres or to rural areas, tive information about dwellings, their different statistics bearing on housing in but the estimates for the dwelling alone, results can be used either to indicate a compendium publication, and to pro hypothetical though they may be, give how the pattern of those characteristics vide some advice on their use. Sug some indication of the movement of is changing, or to stratify the survey gestions as to what should be included construction costs in the area. results for comparison with those of the are encouraged. Census. In the two years noted above, Housing and Households detail was collected on the incidence Notes Again, the Census of Population and and amounts of expenditures on renova Housing provides the starting point to Wherever possible, publications and CANSIM tion or repairs of dwellings, on the type of matrix numbers are given (CANSIM is an which the results of two other major work done, and on whether it was done electronic data bank on which many time ser surveys can be linked. There is not by the homeowner with purchased ma ies are stored). Often, more detailed informa space enough here to describe the terials or by outside workers. Because of tion is available from the survey source. Census information in full, so only those the interest in the extent of this work Frequency of data is indicated by O for occa statistics that relate to other surveys de another survey was carried out for 1987 sional, A for annual, or M for monthly in brack scribed in this article will be mentioned. relating exclusively to these activities.9 ets; the finest level of geographical detail is Although the specifics vary from Census indicated similarly by P for provincial, CMA or to Census, in 1986 it collected a count of Households and the Occupied CA for larger urban centres, and Mun for occupied dwellings, cross-classified by Stock municipalities. On CANSIM, annual totals tenure, structure type, age, number of may be requested from monthly or quarterly Annual sample surveys are carried out figures if summing them is appropriate. rooms, and the main type of heating on household incomes, and on facilities 1. 64-001 (M), 64-203 (A). Building Permits. equipment and fuel used. It also obtained and equipment. Again, the questions (Mun). CANSIM (M) 443, for units, 990 for values of owner-occupied dwellings and vary slightly from one year to another. values (P, CMA); 994, for units, 995 for values, the gross monthly rents paid on tenant However, the same descriptive informa (economic regions). occupied dwellings. Concerning house tion on dwellings is collected as in the 2. 64-002 (M). Housing starts and comple holds (defined as the group of people in Census, as is information on the size of tions. (CA, some Mun). CANSIM 25, 29, (M), an occupied dwelling), the size, tenure, households, tenure, income (and rent (P, plus Montreal, Toronto, Winnipeg and Van age and sex of the household maintainer, paid if the occupant is renting), as well as couver CMAs) for areas over 10,000 pop; household income and major payments on the incidence of a number of facilities 988 (Q) and (A), (P); 440 (A), (CMA only); 986 were all collected. Some of this informa (A), (CA only) for starts, completions, under and pieces of household equipment, construction, by type. CANSIM 24 (0), (P); 29 tion was collected from a one in five and, in some years, the incidence of (M), (P, areas over 10,000 pop.) starts, sea sample. The results were published in a major household renovations or repairs.10 sonally adjusted at annual rates. variety of ways,s and in varying geograph The results, available by province, can 3. 64-201 (A). Construction in Canada. (P). ic detail. In large urban areas, most data provide a good indication of how charac For housing, this only shows new and repair, are available at the level of individual teristics such as the size of households, annual, by type of dwelling. "New" includes Census tracts. the pattern of tenure, and so on, are all capital work. For fuller statistics, see The exact questions for the 1991 changing, although because of sampling CANSIM or contact Statistics Canada. Census are still being planned and tested. variability, small differences in time may CANSIM 441 (Q), 442 (A), capital formation, At this time, it is likely that the questions not be significant. by type of dwelling and conversions and im concerning heating equipment will be provements separately (P). Combining Statistics For the above three references, contact R. dropped. Questions concerning the need Couillard, Current Investment Indicators, Sci for major or minor repairs similar to those The use of any statistics is fraught with ence, Technology and Capital Stock Division, asked in the 1981 Census will probably danger if the user does not know how (613) 951-9691. be asked again, and to the question they were created and what weaknesses 4. See reference 8. 24 PLAN CANADA, 29:3/MAY/MAI 1989 THEME ARTICLES/DOSSIER 5. No publication. CANSIM 4079-4089 (A), Contact Y. Hwang, Capital Expenditures (P), although this does not carry much detail Stock numbers (P). For stock values contact Prices, Prices Division, (613) 951-9616. on renovation and repair expenditures; such Statistics Canada. Also CANSIM 987 (A), 8. 93-104 (0) Dwellings and Households: information is available on micro-fiche and Demolitions (CA). Part 1 (100% data) (P). 93-105 (0) Dwellings other media. 62-210 (A) Homeowner Repair Contact R. Couillard (n. 3 above). and Households: Part 2 (20% sample data) and Renovation Expenditure in Canada (forth 6. 64-208 (A) Residential general contractors (P). 94-127, 94-128 (0) CMAs and CAs. 95- coming) (P), for the 1987 survey. and developers (P). 64-210 (A) Special trade 101 to 95-17 4 (0) Census Tracts (Two pub Contact H. Champion, Family Expenditure contractors (P). 64-204 (A) Mechanical trade lications for each of 37 large urban areas, Survey, Household Surveys Division, contractors (P). 64-205 (A) Electrical trade one for 100% data and one for sample data). (613) 951-4645. contractors (P). 98-130 (0) Affordability of Housing in Can 10. 13-218 (A) Household Facilities by In Contact V. Totten, Census of Construction, ada. Census information is also available in a come and Other Characteristics (P). 64-202 Industry Division, (613) 951-3501. variety of other media. See 99-1 03E or 99-1 03F (A) Household facilities and equipment (P). 7. 62-007 (M) Construction Price Statistics. Products and Services for more detail. Contact M. Meere, Income and Housing (CMA) CANSIM 198. Also carries price index Contact Census Custom Products Service, Surveys, Household Surveys Division, es of inputs into construction, CANSIM (M) Statistics Canada, Ottawa, (613) 951-9534, (613) 951-4637, 423, for materials, 400-41 5, for wage rates or any Regional Office. (CMA). 9. 62-555 (0) Family Expenditure in Canada PLAN CANADA, 29:3/MAY/MAI 1989 25 THEME ARTICLES/DOSSIER often sees Committee members focus gram was introduced, CMHC had several ing upon the proposals at the margin of objectives in mind for the new program. success: good ideas, very different from One was to provide a consistent and fair each other, but in close competition, for process for the evaluation of independ which win or loss judgments must be ent research proposals submitted to the rendered. Naturally, this part of the meet Corporation. Another was to encourage MICHAEL MACPHERSON ing can be exciting. Perhaps it would be Canadian researchers, and the universi Michael Macpherson is the Manager of the wise, however, to interrupt here and give ties, institutions, professions and indus External Research Program at Canada more background to this sometimes sus tries in which they worked, to apply their Mortgage and Housing Corporation. penseful moment. experience, resources and skills to hous ing questions. A third was to help fill the gaps which were not being filled by cur rent directed research and to support innovative investigations and new meth odologies which looked promising. Research proposals funded under the Hoos~ Research: program were expected to examine im portant housing issues and problems, Getting a L:ittle Help from CMHC but they did not need to be limited by CMHC research priorities; the program was plainly intended to respond to curi osity-based research ideas on housing. Introduction Background The program was initiated with a bud get of approximately half a million dollars, In the late fall of each year for the past The External Research Program was and until 1984 it operated with several three years, about a dozen people from introduced by the Canada Mortgage competitions held each year for small various parts of Canada have arrived in and Housing Corporation in 1980 to sti grants (up to $3,500) and large grants Ottawa to spend three days reviewing mulate independent and private sector (up to $20,000). In the last three years, applications to undertake housing re research. It followed a period of about the budget has been about half of the search. These people form the Selection five years when CMHC focused most of initial budget, and the program has oper Committee for the Canada Mortgage its efforts on "directed" research investi ated with a single annual competition for and Housing Corporation's (CMHC) Ex gations, that is, those which were con grants of up to $20,000. ternal Research Program, a program sistent with its own and federal govern Over the last three years, 27 4 applica which will be ten years old in 1989. ment objectives and strategies. Before tions have been reviewed and 41 awards Selection Committee members con that period, the Corporation had for a granted. The overall success ratio over vene, usually in a downtown hotel meet number of years received and funded this period of about 15% is somewhat ing room with plenty of natural light, to through Part V of the National Housing less that what was experienced over the read, debate, and recommend for fund Act (now Part IX) an ongoing stream of previous years of the program. It reflects ing the best research proposals submit unsolicited housing research proposals. the reduced funding levels which the ted to the CMHC program. These were reviewed by CMHC profes program sustained following the applica By the third day, the Committee must sionals as they came in, and those judged tion of fiscal restraints in 1984-85. For reach a consensus on the applications appropriate were considered for funding 1989, additional program funding has recommended to take up the available by senior Corporate Management at been secured, and twenty or more awards program funding. Imagine considering at regular Management meetings through are expected as a result of this year's the same time proposals which would out the year. This approach had the ef competition. During the life of the pro measure septic tank system efficiencies fect of keeping CMHC's research priori gram, over twelve hundred applications at low temperatures, plot urban develop ties relatively open due to an ongoing have been received and over two hun ment using satellite reconnaissance pho exposure to independent research, but it dred and twenty-five research reports togrammetry, look at ways to use the tax also dissipated research resources and have been produced. system to increase the availability of hous consumed a considerable amount of ing, analyze the development of non-profit senior management time. Eventually, it housing projects for women across Can led to the directed research interim men Program Operation and the ada, and examine why elderly home tioned above, and for a period there was Selection Process owners decide to become renters. The no straightforward way to deal with the The Program works as follows. In the Selection Committee usually faces just requests and proposals which continued summer, the application brochure and such an eclectic group of applications. to be sent to CMHC for funding. program guidelines are mailed to all Day three of the meeting, therefore, By the time the External Research Pro- those on the Program mailing list. Copies 26 PLAN CANADA, 29:3/MAY/MAI 1989 THEME ARTICLES/DOSSIER are also sent for distribution to universi selves from discussions of such applica work completed, authorizing payments ties, institutions, consumer and housing tions, in order to avoid conflict of interest as the work progresses, or refusing them industry associations and CMHC Re situations from arising. When the final if it does not. Most, but not all, contracts gional Offices. Although commercial ad day arrives, interest builds as members have been successfully completed under vertising has not been used in recent of the committee have become more the program. years, the program has been included in familiar with the crop of applications and a number of grant directories produced the views of fellow committee members. Program Results by public and private groups for various Caucuses may now become lengthy When a study is finished, the report is purposes. and, at times, vociferous. Additional com publicized and copies are made available A deadline is established for submit mittee members may be drawn in for to CMHC staff and to anyone else inter ting the applications to CMHC. Normally counsel. Tensions may build over such ested, by the Canadian Housing Informa this falls early in October. After being questions as whether a project would tion Centre at CMHC. While for many received, brief reviews are prepared on produce useful results for the residential projects the story ends here with a re each proposal by CMHC staff who have construction industry, or whether to sup search report produced and circulated, subject area expertise, to help the Selec port a project which continues work on a for some it does not. Some have achieved tion Committee in its deliberations. The familiar subject as opposed to one which distinction, such as the study by Paul Selection Committee members them is new and unusual. Reuber, on "New Old Houses." The selves are chosen by CMHC to provide Committee members take their re Canadian Architect magazine gave an a good blend of housing experience and sponsibilities very seriously. The most "Award of Excellence" to Mr. Reuber expertise, while maintaining representa important criteria of success appear to and the CMHC External Research Pro tion reflective of Canada's diverse re be the following: gram in 1987 for this research. Not a few gions. They may come from universities, • is the proposal clear in its research reports have been used as the basis of research institutes, private firms, social questions and objectives? journal articles by their authors, in Cana agencies, other levels of government, • is the methodology sound and are dian and foreign publications. Others and the housing industry. While two data accessible to produce the de have opened up new areas of study or members are usually drawn from CMHC sired results? Can the team produce inspired further investigations by CMHC staff, the majority on the Committee are a useful product? and other organisations. Studies done a not. That and the presence on the Com • has the applicant situated the propo few years ago on granny flats by M. mittee of former applicants, both suc sal within what is at present known Lazarowich and B.W. Haley, and on shel cessful and unlucky, permits the claim to about the subject? tered housing concepts by D. Sherebrin be made that the process reflects the • is the subject a priority for housing or were certainly among the precursors of principle of peer review. sufficiently innovative to stand on its later events: the industry-government After suitable instructions are given to own merits? national demonstration program on gar members by the Committee Chairper Committee members remain dignified den suites (to use the current lexicon), son concerning the application of fair and very professional during the stresses and the research and conference on ness and common sense, the Selection of the selection process, and will resort housing options for older Canadians Committee meeting starts. It consists of to casting votes, if necessary, to sort out which CMHC underwrote in 1988. series of reading rounds during which the ranking of controversial projects, More recent work promises to be just applications are moved toward a win or much to the relief of the Program staff as inspiring. A study by Danielle Maltais, a loss position. Each application must be assisting at the meeting. Francine Trickey and Yvonne Robitaille read and judged at least three times by After the departure of the Selection at the Department of Community Health different Selection Committee members Committee members, the winners are at the Montreal General Hospital received before final rejection or success. It is not notified by a letter from the Minister of very strong praise when it was presented unusual for readers to disagree with the State for Housing. CMHC staff with rele at the 1988 Conference on Housing Op reviews prepared by CMHC "experts." vant subject area knowledge are desig tions for Older Canadians. The study de Some proposals receive additional nated as project officers and they manage veloped a questionnaire which can be readings to settle contentious judgments. the contracts which are drawn up with used by social agencies to identify easy A consensus must be arrived at among the successful candidates. and inexpensive home adaptations, in readers for an application to win or lose, The contracts delineate the work to be order to promote the independence of and readers "caucus" to share opinions done by the successful candidate and older people who have some loss of and arguments on the merits of propo may include improvements stipulated by physical abilities. The instrument is now sals they have read. Readers are select the Selection Committee. Payments are being tested in a pilot project financed by ed as much as possible by matching usually made in three equal instalments, the provincial government. their expertise with the subject area of the whole undertaking being treated as As CMHC moves to put more empha the applications. Readers do not review would a normal research contract with sis on its role as a leader in housing applications submitted by close col CMHC. This means that the CMHC proj research and as an advocate of housing leagues or associates and excuse them- ect officer offers assistance and reviews quality improvements, it is likely that re- PLAN CANADA, 29:3/MAY/MAI 1989 27 THEME ARTICLES/DOSSIER search results from the External Re participation on housing quality in Recent ERP Reports search Program will be scrutinized even urban planning? "lnventaire permanent du pare residentiel more carefully to see how they may serve canadien par province, phase II" par Ri as a basis for new initiatives, policy de Conclusion cardo Verges-Escuin. velopment, and housing information for The External Research Program is a "Les societes acheteuses au Quebec" par transfer to other researchers, consumers, very modest program supporting inde Marie-Claire Malo. and the building industry. As witness to pendent housing research in Canada. Its "Effets de la participation des municipalites a this, consider these research questions openness to many types of research on la production de logements pour le marche" posed by the successful applicants in housing is rewarded each year with an par Marcel Gaudreau. 1987 and 1988: astonishingly broad range of proposals. "Supportive Housing for Seniors: The Ele ments and Issues for a Canadian Model" Applicants come from different regions • What adaptations have people been by Charlotte C. Murray. and disciplines (including a number making in their homes to look after "An Assessment of Provincial Legislation, victims of Alzheimer's disease? whose names have graced the pages of Building Regulations, Public Health Regu • What are the economic consequences this journal). Applicants and winners lations and By-Laws as a Barrier to Hous of divorce on families owning marital have frequently pointed out that there is ing People with Disabilities" by Malcolm J. homes? a special prestige attached to winning Holt. an award from CMHC under this pro "A Survey of Ventilation Systems for New • To what extent do the Building Code, gram, but it should also be said that the Housing" by Chris Mattock. and other regulations and legislation Corporation has been well served by the "Housing Alzheimer's Disease at Home" by impede housing disabled persons in ideas and research findings of the many Nancy J. Gnaedinger. normal community settings? individuals who have participated in the "La regie du logement 7 ans apres: son influ How do income assistance, shelter ence juridique s'est-elle manifestee?" par • competitions. allowances and social housing com Therese Rousseau-Houle. If you would like additional information pare as responses to the need for "Qualite acoustique, isolation et intimite des on this Program, or would like to be put affordable housing? immeubles d'habitation en coproprietes" on the mailing list for this year's competi par Jean-Gabriel Migneron. • What are the basic requirements tion, please write to Michael Macpherson, "Radon Exposures in Fredericton Area Houses for mechanical ventilation in new Manager, External Research Program, and Wells" by Stanton T. Friedman. (airtight) housing and how do existing Canada Mortgage and Housing Corpora "Cooperative Housing as New Life Style Op systems and equipment measure tion, National Office, 682 Montreal Road, tion for Seniors" by Barbara Sanford. up? Ottawa, Ontario K1 A OP?, or call the Pro • What has been the effect of citizen gram Office at (613) 7 48-2250. 28 PLAN CANADA, 29:3/MAY/MAI 1989 REFEREED ARTICLE/ ARTICLE SOU MIS A DES ARBITRES Nonvelles politiqnes en habitation~ REFEREED ARTICLE/ARTICLE SOUMIS A DES ARBITRES REJANE BLARY ABSTRACT RESUME The rise ofneo-conservatism, the coming to power ofa conserva La montee du neo-conservatisme, l'arrivee au pouvoir d'un tive government and the introduction ofnew housing policy gouvernement conservateur et la presentation d 'unenouvelle guidelines triggered a number qfreactions. Is the federal gov orientation de la politique du logement ant suscite de nom ernment shying awayfrom intervention in the housing area? breuses reactions. Y aurait-il retrait du gouvernementjederal Do the new housing policies herald a progressive decrease of du champ de l'habitat? Les nouvelles politiques d'habitation state intervention in this domain? It seems not. In no way is the annoncent-elles la diminution progressive des interventions state withdrawing from the field; on the contrary, the level of etatiques en ce domaine?fl semble que non. fl n 'ya nullement intervention is the same, ifnot higher than before, albeit in a un desengagement de l 'Etat mais au contraire une interven different way. This new mode of intervention follows a path tion egale sinon accrue mais avec des modulations dijfe which was determined long before the arrival of the present rentes. Ce nouveau mode d'intervention se situe d'ailleurs government. dans une trajectoire amorcee bien avant l'arrivee de l'actuel gouvemement. Depuis la fin des annees 1970, on parle fert ou plutot une reconnaissance des une partie plus substantielle des charges de retrait des gouvernements du champ responsabilites de !'habitat aux gouver financieres au palier provincial et de res de !'habitat et plus particulierement du nements provinciaux? Ou s'agit-il d'un serrer davantage l'eventail des benefi desengagement du gouvernement fede reamenagement des interventions? ciaires de logements sociaux. II ouvre ral. A l'ere de la dereglementation, de la Le champ de !'habitat devait beneficier ensuite un large debat sur le logement et coupure des depenses publiques et de de la lune de miel annoncee par le gou le role de l'Etat. Sont consultes quatre la privatisation accrue de la production vernement federal dans ses rapports ensembles de groupes: un premier en du logement, !'intervention de l'Etat et avec les provinces. Dans plusieurs dis semble de producteurs de logements,s !'aide publique au logement relevent cours,2 le ministre responsable de la un second ensemble de financiers,6 un presque des interdits. Des 1978, c'est la Societe canadienne d'hypotheques et troisieme ensemble de professionnels,7 fin des prets federaux directs aux muni de logement offre un programme de re un quatrieme reunissant des groupes cipalites pour les HLM. Les prets directs conciliation nationale d'ou seraient ban sociaux d'interet prive ou des groupes pour la construction de logements loca nis confrontations et conflits. C'est une specifiques.a Cette consultation, large tifs, qu'il s'agisse d'OSBL ou de promo cooperation qui est proposee mais une ment inspiree par le souci avoue de re tion privee, ne sont plus possibles. C'est cooperation initiee par le gouvernement duire les depenses publiques, oriente la aussi le retrait de !'aide aux infrastruc federal et selon un schema defini par lui. discussion sur !'identification des obsta tures municipales et aux equipements Malgre une competence contestee en cles a la croissance, la stimulation de communautaires. Hulchanski et Drover1 matiere d'habitat,3 mais fort de son pou l'entreprise privee et du gout du risque, soulignent que les mesures prises par le voir de depenser que l'Accord du lac un ciblage plus serre de la clientele gouvernement liberal concernant le Meech ne pourra que conforter, le gou sociale. Parallelement, des discussions logement pendant la periode 1978 -1981 vernement federal fixe les grandes lignes avec les ministres provinciaux, en de sont tout a fait conformes a l'approche de la nouvelle politique de logement. Son cembre 1984 et en juillet 1986, portent neo-conservatrice. La venue au pouvoir document d'etudes sur le logement4 af sur la coordination des actions qui ten d'un gouvernement conservateur ne firme sa preoccupation de transferer dent notamment a accro1tre le role des pouvait que confirmer les tendances provinces dans la mise en oeuvre et le anterieures. Elle annon9ait le retablisse financement des programmes sociaux. ment de !'esprit d'entreprise, le jeu sans REJANE BLARY Consultations et consensus aboutissent entrave des mecanismes du marche. Defarmationjuridique et economique, a une nouvelle definition de la politique Depuis quelques annees, la politique de Rejane Blary est professeure titulaire a federale en matiere d'habitat.9 !'habitat a fait l'objet de nombreux dis l Tnstitut d 'urbanisme de l 'Universite de Des 1985, les media predisent le trans Montreal. Elle a publie de nombreux cours, consultations et mesures diverses. travaux sur le zanage au Quebec ainsi que fert aux provinces de la responsabilite Peut-on dire qu'il y ait reellement une sur /'habitat San livre Habitat; Du cliscours du logement social. Le ministre Bill desaffection du gouvernement federal aux pratiques a paru recemment (fin McKnight, qui signe en 1986 une serie vis-a-vis du champ de !'habitat? un trans- 1988) aux Editions du Meridien d'ententes federales-provinciales rem- PLAN CANADA, 29:3/MAY/MAI 1989 29 REFEREED ARTICLE/ ARTICLE SOU MIS A DES ARBITRES plagant celles de 1978-79, se sent oblige dans certains cas. Lors de la conference public et social du logement; aide a la de contester cette interpretation.1 o Cons interprovinciale des ministres des Affaires viabilisation des terrains afin de rentabi tater le desengagement federal de l'aide municipales de 1988, un appel sans liser les activites de l'industrie de la cons sociale ne serait d'ailleurs pas nouveau equivoque a ete lance au gouvernement truction. Jusqu'a tout recemment, une ni imputable exclusivement au nouveau federal pour qu'il finance les reseaux conjoncture favorable n'a pas oblige le gouvernement conservateur. Deja en d'aqueduc et d'egout. Les anciens pro gouvernement a reviser ses positions 1982, Dansereau avail note la nouvelle grammes avaient ete abandonnes par le sur la pertinence de programmes anti strategie de la SCHL: renonciation a !'in gouvernement federal depuis 1 980 en cycliques. Les taux d'interet n'ont pas tervention directe et logique de privatisa raison de motifs constitutionnels et, sur encore connu la flambee de 1982. Le tion.11 Les pouvoirs publics ont com tout, de !'absence de ma1trise federale nombre de mises en chantier cro1t regu mence effectivement a se "retirer" de de leur mise en oeuvre. En realite, on lierement de 1984 a 1987 (de 134 900 a !'aide directe a !'habitat vers la fin de la assiste non pas a un retrait du gouverne 245 986) avec un leger recul en 1988 decennie 70; la part des mises en chan ment federal mais a un reamenagement (soil 227 000 mises en chantier selon tier aidees par le gouvernement tombe assez pousse de son intervention. les estimations). Par contre, ii etait difficile de 45% a 1 5% au cours de la periode D'ailleurs, bien avant son arrivee au politiquement d'ignorer le probleme d'ac 1947 -1985, com me le montre !e gra pouvoir, le Parti conservateur a toujours cessibilite au logement pour certaines phique 1.12 Au Quebec, le gouvernement eu une position tres claire: opposition a couches de la population. On maintien provincial reinvestit ce champ; ii lance !'utilisation de l'industrie de la construc dra done un volet social a la politique plusieurs nouveaux programmes et es tion comme element regulateur des fluc federale. Mais on releguera de plus en saie avec un bonheur inegal d'affirmer tuations de l'economie mais, au contraire, plus aux oubliettes la politique du loge son autonomie. Les nouvelles mesures stabilisation de ce secteur dans le long ment public, tendance deja largement du gouvernement conservateur s'ajou terme; frein a !'expansion du secteur amorcee depuis 1978; on limitera l'aide tent a toute une serie de reculs anterieurs GRAPHIOUE I de la part du gouvernement federal dans certains secteurs, tels le logement social et les equipements collectifs. C'est no tamment la suppression des prets directs au logement et de l'aide aux infrastruc tures municipales. Aux yeux de certains, ii s'agit d'un desengagement graduel et de plus en plus accentue. En fail, ii n'en 1985 est rien. Un examen attentif de la politique federale depuis 1984 semble au contraire 1981 faire ressortir une intervention federale constante dans le domaine de !'habita 1976 tion. L'intervention est certes differente de celle des annees 1970. Elle tend sur 1971 tout a renforcer les forces du marche et 30 PLAN CANADA, 29:3/MAY/MAI 1989 REFEREED ARTICLE/ ARTICLE SOU MIS A DES ARBITRES sociale aux besoins imperieux, mais sur logements. La tentation est done grande americain de 1968 (GNMA), ces titres tout on tentera au maximum de soumet pour la plupart des gouvernements, en hypothecaires offrent un investissement tre !es logements publics ou sociaux aux periode de crise ou de ch6mage, d'utili qui donne lieu a des transactions sur lois generales du marche. Une politique ser la construction residentielle comme leur marche secondaire des hypotheques de non-interventionnisme avail ete pro instrument de relance de l'economie. residentielles. Creances hypothecaires clamee !ors de la conference de 1985 Bref, !'habitation devient un element regu regroupees en titres hypothecaires de reunissant !es ministres federal et provin lateur ou stabilisateur, subordonne aux 5 000$, assures par la SCHL, celles-ci ciaux; mais ii faut interpreter cette decla objectifs generaux de regulation de la donnent droit aux mensualites et au ration essentiellement comme un rejet croissance economique generale. Cette remboursement du solde dans un mini de la politique contracyclique si souvent politique a donne lieu a de nombreuses mum de 5 ans. La formule des titres hy utilisee par le gouvernement federal et controverses qu'il serait difficile de re pothecaires a ete etendue retroactivement meme par certains gouvernements pro sumer dans le cadre de cet article. Mais par l'assurance-portefeuille aux prets vinciaux durant les crises. Effectivement, les Conservateurs ont toujours ete en conventionnels anterieurs non assures. le gouvernement federal, conformement desaccord avec cette these. lls sont, au Cette nouvelle source de fonds pour aux vues du neo-conservatisme, favorise contraire, en faveur de la stabilite du sec !es prets au logement devrait permettre le transfer! des operations vers le secteur teur de la construction residentielle. Une des prets a plus long terme et surtout de prive et met !'accent sur la dereglemen tel le option aurait l'avantage d'augmenter nouvelles formes de placement pour les tation. II intervient de fa9on particuliere la productivite et !es economies d'echelle investisseurs, d'autant plus que le taux ment efficace pour faire jouer a plein !es et de diminuer !es coots de construction. offert est plus eleve que celui des obliga mecanismes du marche de l'industrie Le dilemme, evidemment, demeure: tions d'epargne du Canada. On envisage de la construction. Dans cette optique, ii comment confronter !es coOts de la sta meme d'utiliser ces titres hypothecaires tentera d'aligner au maximum le secteur bilisation economique a ceux de l'insta pour le financement des logements so public (H LM) et le secteur social (coope bilite du secteur du logement? Le gou ciaux, ce qui ferait baisser le niveau des ratives) sur le secteur prive; !es carac vernement conservateur n'a jamais subventions liees au taux d'interet. Par teristiques specifiques "publiques" et totalement ecarte la possibilite de me ailleurs, en 1987, la disponibilite des "sociales" doivent etre de plus en plus sures a court terme pour stimuler le fonds hypothecaires est renforcee par la gommees. On est evidemment tres loin marche mais une telle politique serait, possibilite de l'assurance-pret d'une hy des declarations du ministre Basford, a selon le ministre McKnight,14 exception potheque de second rang pour l'achat la Chambre des Communes, !ors des nelle et subordonnee a!'accord des inter ou la renovation d'un logement. debats de la Commission permanente venants du secteur. C'est done une Ces mesures sont l'aboutissement de la sante et du bien-etre du 29.03.1973, croissance reguliere et stable du secteur d'une entente entre le gouvernement et concernant le developpement des co de la construction qu'il va favoriser; ii va l'industrie, entente qui ne peut qu'obtenir operatives constitutives d'une "troisieme tenter aussi de contrer les tendances la benediction des institutions financieres. force du marche." naturelles de ce secteur a l'instabilite. Mais elles ne sont pas suffisantes pour Cette prise de position se trouve conso soutenir l'industrie de la construction. 1) Renforcement et regulation lidee par la croissance des depenses de des mecanismes du marche de renovation, croissance beaucoup plus b) Allegement des couts pour la construction stable et continue que celle du secteur l'lndustrle prlvee En termes de produit interieur reel, l'ins de la construction neuve. Les depenses L'industrie de la construction est consti tabilite naturelle de la construction se de renovation, depuis quelques annees tuee essentiellement de petites entre situe a un niveau assez eleve. Selon d'ailleurs, sont egales, sinon superieures, prises mettant sur le marche moins de plusieurs auteurs, le secteur de la cons a celles de la construction neuve.15 Et le 10 logements par an. II n'y a en fail truction est le secteur economique le vieux mythe de la croissance, base sur aucune entreprise d'envergure nationale plus instable apres !'agriculture. C'est la le nombre de mises en chantier, tombe au Canada: en 1975, un maximum de 75 composante residentielle qui accuse !es peu a peu. II suffira done d'ameliorer le entreprises offraient plus de 100 loge variations !es plus fortes. Elle se carac financement et d'alleger les coOts du ments par an, meme si elles accaparai terise en outre par des fluctuations con secteur prive. Certains pratiques ante ent 30% du marche des maisons indi tracycliques, avec tendance a la crois rieures des gestionnaires devront etre viduelles.16 La petite taille des entreprises sance pendant !es periodes de contrac revisees en consequence pour servir les pose des problem es de gestion et d'inno tion et tendance a la retraction pendant nouvelles politiques. vation. Pour permettre de surmonter leur !es periodes d'expansion.13 La reaction handicap en ce domaine, on va done plus lente des taux d'interet hypothe a) Amelioration du financement multiplier !es mesures susceptibles de caires, par rapport au rendement des hypothecaire limiter !es coOts divers, d'ameliorer la obligations a long terme, a la politique Favoriser l'elargissement et la mobilite gestion et la commercialisation et d'en monetaire et a la conjoncture economi des creances hypothecaires, tel est le courager !'innovation. que, expliquerait en partie !es fluctuations but des titres hypothecaires, offerts des • simplification du processus de regle contracycliques de la construction de janvier 1987. Inspires du programme mentation PLAN CANADA, 29:3/MAY/MAI 1989 31 REFEREED ARTICLE/ ARTICLE SOU MIS A DES ARBITRES Nonobstant la competence provinciale lion aux besoins locaux ni une certaine mesures ne sont pas suffisantes. Encore en matiere de normes de construction, diversification du produit.19 A present, les faut-il marginaliser davantage les deux l'idee d'un cadre national de reglemen Conservateurs pronent une reglementa autres secteurs, le secteur public et le tation plus souple que l'actuel Code na tion homogene mais cette reglementa secteur social, qui sont peu menagants tional du batiment et a valeur indicative tion homogene doit, en plus, etre allegee. mais "derangeants." s'affirme de plus en plus.1 7 Ce projet est • prise en charge du coot de !'informa le fruit d'echanges entre le gouverne tion et de la recherche et incitation a 2) Privatisation des logements ment, !'Association des constructeurs, la !'innovation. publics et sociaux Federation canadienne des municipalites Le gouvernement va aussi jouer le Le gouvernement federal s'est deja retire et !'Association canadienne des respon role de chef de file dans !'information et des prets directs a la fin des annees sables de !'habitation et de l'urbanisme. l'incitation a !'innovation. En 1985 est 1970. II va maintenant faire un second La reglementation est presentee comme creee la Commission canadienne de pas puis un troisieme. D'abord, ii va un mal parfois necessaire mais surtout recherche sur la construction afin de demander aux provinces d'assumer une coOteux. Elle est en outre un obstacle, permettre a l'industrie de la construction plus grande responsabilite en matiere selon le gouvernement et les construc d'intervenir sur les politiques et les pro sociale. En termes clairs, cela signifie teurs, a !'adaptation et a !'innovation. On grammes de recherche de l'lnstitut de une charge financiere de plus en plus estime done qu'une reforme de la regle recherche en construction du Conseil lourde pour ces dernieres. Ensuite, ii va mentation devrait engendrer de substan national de recherche du Canada.20 La intervenir pour que les deux categories tielles economies sans necessairement prosperite de l'industrie de la construc marginales de logements, les logements compromettre les besoins essentiels de tion est liee a sa productivite, qu'il importe publics et sociaux, se plient encore securite et de sante, ni le niveau des d'augmenter. Un nouveau Centre cana davantage aux lois du marche prive. services locaux, ni les valeurs immobi dien de materiaux de construction, ad lieres, ni, par ricochet, l'assiette fiscale min istre par l'IRC, a pour role d'evaluer a) Transfert accru des charges aux municipale. Bref, la reglementation de toutes les categories de materiaux. En provinces vrait etre subordonnee, comme le precise juin 1987, est cree un Centre d'analyse Le transfert des responsabilites sociales un document de la SCHL,18 a la rentabilite du marche qui met a la disposition de aux provinces se concretise dans une de la construction neuve. Cette approche l'industrie toutes les informations utiles serie d'ententes federales-provinciales, rejoin! la position traditionnelle des Con sur l'economie canadienne et sur les conclues en 1986, qui concernent plu servateurs en Chambre, qui denoncent marches hypothecaires et residentiels. sieurs programmes. Ces ententes, dans le niveau trop eleve des normes pres Des 1986 est mis sur pied un Comite un charabia etrange pour une adminis crites par la SCHL. C'est aussi la pers national de recherche sur !'habitation qui tration moderne, identifient des pro pective de groupes d'interet tels que reunit les ministeres et organismes fede grammes de logements sans but lucratif l'lnstitut du developpement urbain dont raux, l'industrie du batiment et les asso qui correspondent, selon le cas, a des le president Gertler proposait recem ciations de consommateurs. Ce comite categories ditterentes ou a des benefi ment la construction de plus petites a pour buts la coordination des re ciaires distincts: logements publics ou maisons sur de plus petits lots comme cherches et la garantie d'une offre cons HLM, logements prives ou cooperatives solution a la penurie de logements a tante de logements. et organismes sans but lucratif, PARCO coot modique. Bref, ii faut ajuster les Des programmes specifiques encou (Parel-Loginove) ou programme de res normes a la solvabilite des acquereurs. ragent !'innovation; ainsi en est-ii du pro tauration, logements pour ruraux et au Or jusqu'a present, la SCHL avait toujours gramme d'innovation sur les chantiers tochtones, logements pour autochtones exige des normes minimales pour les cree en 1988. Un autre programme, le en milieu urbain. Ces programmes repre logements modiques ou sociaux; et programme d'encouragement a la tech sentent la plus lourde charge DIRECTE meme, depuis quelques annees, les nologie du batiment residentiel, est des du budget federal en matiere d'habitation beneficiaires de !'aide de l't:tat etaient tine aux petites entreprises pour la mise (l'aide indirecte ou fiscale, nettement loges dans des logements de qualite au point de nouveaux produits ou de plus lourde, est rarement mise en cause). egale a celle des logements congus nouvelles methodes. La repartition des charges, qui s'effectuait pour les menages a revenu superieur. Ainsi, ce premier vole! de la politique anterieurement selon une proportion plus II faut noter par ailleurs un certain re federale, le renforcement et la regulation ou moins generalisee de 75% de la part virement des Conservateurs sur plusieurs du marche de la construction, est loin de du gouvernement federal et de 25% du aspects de cette question. Lars de debats se presenter comme un desengage gouvernement provincial, va etre sensi anterieurs devant la Chambre des Com ment. Toutes les mesures tendent au blement modifiee. Dans !'entente Ca munes au sujet du PAAP, en 1973 et en contraire a contrer les fluctuations du nada-Quebec 1986-1989, les nouvelles 1975, quelques deputes denongaient marche de la construction et son insta proportions se repartissent ainsi: l'homogeneite de la reglementation bilite. De multiples interventions tendent • OSBL prives: 75% du gouvernement comme une mesure de mefiance envers a soutenir ce secteur et a prendre en federal, 25% du gouvernement provin le secteur prive. Cette homogeneite, charge directement des depenses ne cial pour la duree de !'entente; selon eux, ne permettait pas une adapta- cessaires a son expansion. Mais ces • Supplement au loyer: 65% en 1986 32 PLAN CANADA, 29:3/MAY/MAI 1989 REFEREED ARTICLE/ ARTICLE SOU MIS A DES ARBITRES tombant a 59% en 1 988 du gouverne nages inscrits sur les listes d'attente des coises sont essentiellement des coope ment federal et 35% puis 41 % du HLM dans les logements vacants. lls ratives locatives qui achetent des loge gouvernement provincial. Pour le nou versent alors aux proprietaires prives ments existants et les restaurent. Cet veau programme federal cooperatif, une subvention, soit la difference entre le appel au secteur prive en 1988 coincide la proportion reste de 75% et 25%; montant du loyer fixe par !'entente pro d'ailleurs avec un taux record d'inoccu • Programmes de logements pour les prietaire/ OHM et le montant paye par le pation general de logements sur I'1Ie de ruraux et autochtones: 75% du gou locataire. L'OMH de Montreal fait appel Montreal, soit 4,4%, taux deux fois et vernement federal et 25% du gou a 260 logements du secteur prive en demi plus eleve qu'en 1987. L'argument vernement provincial. 1987. En 1988, la demande est renou du moindre coOt pour- l'Etat, qui est sou velee pour 326 families. Cette solution vent invoque, peut etre relativise car ii ne b) Gel du patrimoine public jugee bon marche est destinee a sou situe pas !'evaluation dans sa dimension Pour la premiere fois au Quebec, con lager tres legerement la pression de la temporelle. Dans le cas de la construc trairement a certaines autres provinces, demande des demunis, dont 14 000 tion d'un HLM, la charge financiere de on fait appel en 1987 aux proprietaires sont encore inscrits sur la liste d'attente l'Etat est particulierement lourde pendant du secteur prive pour louer aux reque pour des HLM en 1987. II est clair que la periode d'amortissement. Plus tard, en rants HLM des logements prives vacants cette solution a court terme n'augmente raison de la qualite de la construction du secteur prive. Un projet experimental nullement le pare immobilier public, deja des HLM, le loyer paye par le locataire de la Societe d'habitation du Quebec tres limite a Montreal, et dont l'accroisse peut couvrir les deficits d'exploitation confie a 23 offices municipaux !'adminis ment annuel ne depasse pas 500 a 600 durant la vie utile du logement. Si la solu tration de 982 logements du secteur prive unites pour le volet HLM. Or les HLM tion privative persiste au-dela de 5 ans, (sur 1 315 logements beneficiaires de constituent le vehicule privilegie d'aug le supplement au loyer verse aux proprie ce programme). Ces offices concluent mentation du pare de logements neufs taires prives continuera a etre verse inde pour 5 ans une entente avec des bailleurs de bonne qualite destine aux personnes finiment. L'etat des logements prives prives. lls peuvent done loger les me- a faible revenu. Les cooperatives quebe- ainsi loues prete a la critique meme si l'OMH subordonne !'entente au respect du code du logement de Montreal. Mais IC>lllL:lL:Cln______les normes de ce dernier sont inferieures Consulting Engineers • Planners a celles de la construction neuve HLM. M.M. DILLON LIMITED Environmental Scientists Comme signale dans Se /oger au Que TORONTO LONDON • Urban and Regional Planning OTTAWA WINDSOR bec, le coot de la construction d'un HLM • Recreation and Tourism CAMBRIDGE WINNIPEG est nettement plus eleve que celui d'im • Land Development REGINA meubles semblables dans le secteur prive (coot moyen de 42 000$ pour un • Environmental Assessment G CG DILLON CONSULTING LIMITED • Transportation Planning EDMONTON RED DEER HLM de 2 chambres contre 30 000$ • Economic Development YELLOWKNIFE pour un logement de meme taille du secteur prive). "L'ecart s'expliquerait en • Urban Design/Redevelopment PORTER DILLON LIMITED partie par une difference de qualite, la • Landscape Architecture HALIFAX realisation des logements publics etant TORONTO (416) 229-4646 EDMONTON (403) 483-8094 HALIFAX (902) 453-1115 assujettie a des normes plus severes."21 Le rapport de l'OHM de Montreal du 31.05.198~2 enumere plusieurs moyens possible de reduire la liste d'attente. Mais l'OMH ne semble guere pret a louer des unites de logements dans des constructions neuves sauf dans le cadre d'ententes specifiques avec un promo ~ Arc::::,u,e teur beneficiaire d'avantages octroyes ;:;~n~!.~~~~~e~a~s~pe par la Ville et qui participerait a un projet OFFICES mixte public-prive ou contribuerait a la • Brampton • Hamilton • Kenora • Kingston question des logements sociaux. Le • Kitchener • London • North Bay • Ottawa loyer des constructions neuves est en • St. Catharines • St. John's, Nfld. • Sault Ste. Marie effet superieur au loyer moyen du marche. • Simcoe • Sudbury • Thunder Bay Entin, l'interet du secteur prive pour la clientele sociale reste aleatoire et, etant 45 Green Belt Drive, Don Mills, Ontario, M3C 3K3 lie au taux d'inoccupation des loge Tel: (416) 445-3600 Fax: (416) 445-5276 ments, peut poser des problemes a l'avenir. PLAN CANADA, 29:3/MAY/MAI 1989 33 REFEREED ARTICLE/ ARTICLE SOU MIS A DES ARBITRES c) D/sparltlon de la lormule conservateur, la formule cooperative Dans chaque projet, 15% des logements orlglnale cooperative meme, malgre les denegations formelles au minimum sont reserves a ceux qui ne du nouveau ministre,25 tend a dispara1tre. peuvent se loger convenablement sur le La marginalisation des HLM, formule Les cooperatives locatives du Quebec, marche. Ceux-ci beneficient alors du jugee trop onereuse et liee a la construc sans apport et sans gain de capital, sont supplement au loyer dans le cadre prevu tion neuve, avail ete compensee par !'af distinctes des OSBL. Propriete collective par !'entente Canada/Quebec. Ce nou firmation d'une implication privilegiee des membres par achat et restauration, veau programme donne aux coopera dans le logement social, sous forme de elles constituent une alternative a la tives classiques un tout autre profil. Pour cooperatives et OSBL. Mais cet interet propriete traditionnelle et se differencient conserver l'idee de mixite sociale, ces etait assorti des 1978 d'une volonte nettement des cooperatives de capitali cooperatives n'abriteront pas exclusive d'adapter la formule cooperative aux sation (Societe d'habitation Alphonse ment les clienteles a besoins imperieux. exigences du marche traditionnel. Le Desjardins) qui permettent aux membres Mais la nouvelle formule des prets hy programme social le plus marque peut d'accro1tre leur equite et d'accumuler un pothecaires indexes, suggeree par la etre par !'intervention federale est celui capital. Leur seconde specificite reside Fondation de !'habitation cooperative des cooperatives. Objet constant de dans l'autogestion. Dans la nouvelle en elle-meme, renforce l'alignement des fortes reticiences de la Societe cana tente Canada/Quebec, la cooperative cooperatives sur les logements du dienne d'hypotheques et de logement,23 semble perdre encore davantage son marche. II faut rappeler d'ailleurs que la ce programme original rer;oit actuelle caractere specifique dans la panoplie mise en place du programme n'a pas ment le coup de grace. Contrepartie de des programmes dont elle releve. Les repondu aux attentes de la Fondation. La !'abandon des prets directs et de la con cooperatives font a present partie des nouvelle formule apporte des economies tribution federale de 1 0% du coot de logements OSBL, qui se repartissent en substantielles surtout au gouvernement; realisation, la subvention continue de logements OSBL publics et prives, dont comme les paiements hypothecaires 1979 (egale a la difference entre le taux les cooperatives. On estime presque sont plus faibles au cours des premieres de 2% et le taux du marche) avail rendu superflu de rappeler leur difference. Le annees, la subvention de la SCHL en prohibitif le coot des cooperatives en rai nouveau programme federal des coope est d'autant diminuee. Enfin, la methode son notamment de la flambee des taux ratives, avec prets indexes definit ainsi d'evaluation des layers de la SCHL ne d'interet des annees 1980. A cette epo les beneficiaires (Rapport SCHL, 1987, tient nullement compte de la participa que, les layers avaient deja ete alignes P.O.): "menages en mesure de se loger tion des membres a la gestion de leur sur le marche. Comme le montrent Ol convenablement sur le marche locatif logement. son et Taylor,24 ces reformes avaient mais qui ne peuvent acceder a la proprie Au Quebec, les effets de ce nouveau contraint les cooperatives a s'adapter au te individuelle en raison de l'insuffisance programme semblent moins satisfaisants marche capitaliste en se conformant au de leur revenu ou de l'impossibilite qu'auparavant. Le mouvement cooperatif loyer du marche. Avec le gouvernement d'avancer la mise de fonds initiale." pouvait, auparavant, loger 50 a 60% des Cooperatives Logements pour ruraux (subventions d'ex- OSBL autochtones urbains Annees ploitation 56.1) (56.1) et ruraux HLM Total 1987 1 0741 9861 4391 1 8001 4 299 1986 8961 4001 608 1 2 4331 4 347 1985 1 4472 1 1262 4082 2 8102 5 791 1984 1 1672 1 2372 2362 2 7752 5 415 1983 1 4302 2 0702 27813 6 281 1982 1 6282 1 5862 3 4564 6670 1981 1 1582 2 0302 3 1674 6 355 1980 1 0135 2 7935 3 8756 7 681 1979 6256 5 8126 3 8006 10 237 1 Rapport annuel SHQ 1987 Province de Quebec 2 Rapport annuel SHQ 1985 Province de Quebec 3 Rapport annuel SHQ 1984 Province de Quebec 4 Rapport annuel SHQ 1983 Province de Quebec s Rapport annuel SHQ 1980 Province de Quebec 6 Rapport annuel SHQ 1983 Province de Quebec, Graphique p. 24 34 PLAN CANADA, 29:3/MAY/MAI 1989 REFEREED ARTICLE/ ARTICLE SOU MIS A DES ARBITRES menages a bas revenus. Ce taux serait courager. L'interet de plus en plus mar l'aide sociale. II assume 75% de l'ex tombe a 30%, selon le porte-parole de la que pour la maison prefabriquee qui cedent du coot de logement des families, Fondation, M. Jean DIONNE, et corres permettrait d'offrir a un million de Cana excedent calcule a partir d'un niveau pondrait au pourcentage de 30% d'unites diens, dont le taux d'effort pour le loge etabli selon le nombre d'enfants. Une liees au supplement de revenu. A tout ment est trop eleve, une possibilite d'ac telle mesure serait destinee a 45 000 ceci s'ajoute la diminution des subven ces au logement sans l'aide du gou families inscrites a l'aide sociale ainsi tions aux Groupes de ressources tech vernement, est clairement affirme.26 Le qu'a 6 000 autres a faible revenu. Le niques (GRT). La reduction du nombre souci d'autoregulation marchande ac tableau II montre, par ailleurs, l'attrait de GRT favorise la centralisation et de centue evidemment la privatisation du croissant du supplement au loyer, autre courage !'habitat cooperatif autogere. logement. la disparition ou le retrecisse forme d'allocation-logement. Ce supple En conclusion, on peut dire que la ment de la sphere publique et sociale du ment au loyer n'est plus seulement attri nouvelle politique du gouvernement fe logement. Comme le montre le tableau I, bue aux OSBL mais egalement aux deral s'inspire, dans une certaine me la part des logements publics et sociaux locataires HLM de logements prives. sure, des principes d'un neo-conserva decro1t sensiblement au cours des an Encore faudrait-il, pour evaluer !'en tisme dont la montee marque la plupart nees. Or au Quebec, selon le gouverne gagement etatique, analyser davantage des pays occidentaux. Mais ii importe de ment, dans Se loger au Quebec, le les aides indirectes ou abris fiscaux dont souligner que cette nouvelle orientation patrimoine residentiel public et social les incidences sont beaucoup plus im est anterieure a l'arrivee au pouvoir des (HLM, OSBL et cooperatives) ne repre portantes. Le rapport Nielsen de 1985 Conservateurs et qu'elle s'est amorcee sentait, en 1981 . que 2,7% d'un stock evaluait le montant des abris fiscaux a partir de 1978 ou meme avant. De immobilier de 2 173 000 logements.27 immobiliers en 1984 a 4 milliards de dol toute fagon, ii ne peut s'agir d'un ren Au lieu de renforcer ce patrimoine, on lars, soit un montant deux atrois fois plus versement de tendance, dans la mesure essaiera plut6t, comme nous l'avons vu, eleve que les subventions directes; plu ou ni le palier federal ni le palier provin d'adapter l'offre a une demande de re sieurs pretendent que ces chiffres sont cial n'ont jamais joue en matiere de poli venus modestes pour assurer le fonc particulierement sous-estimes. Fallis29 tique du logement un role d'Etat-provi tionnement du marche, quitte a diminuer estimait deja, en 1985, l'aide indirecte de dence. Les nouvelles voies sont en re les normes de qualite des logements. La l'Etat a 5,35 milliards de dollars en 1979 vanche bien definies. II n'y a nullement preoccupation lancinante de la relance comparativement a 288 millions pour un desengagement de l'Etat mais un du marche de la construction laisse evi l'aide directe, ce qui semble mettre en renforcement des grands mecanismes demment intacts les problemes de la cause la proportion avancee par le gou de l'offre. Le recours aux mesures key redistribution et de la capacite d'acceder vernement conservateur. Dans leur etude, nesiennes, tournees vers la demande, a un logement convenable, meme si ce Divay et Richard3D evaluent l'aide di est explicitement rejete. Le marche resi souci a toujours ete limite au Canada. recte du Quebec durant la decennie dentiel ne sera plus utilise comme un Les solutions de rechange s'acheminent 1970 a 700 millions de dollars et l'aide outil regulateur des fluctuations de l'eco lentement vers une formule d'allocation implicite a 6 milliards de dollars au mini nomie generale. C'est la stabilite de ce generalisee, meme si le ministre federal mum. En 1984, le gouvernement quebe marche qu'il faut assurer; c'est la capa a rejete officiellement cette solution.2s Le cois, dans Se lager au Quebec, evalue cite de l'offre a repondre aux differents gouvernement quebecois recourt main les incitatifs fiscaux ou pertes de revenus types de besoins solvables qu'il faut en- tenant a cette formule par le biais de pour le gouvernement quebecois en TABLEAU II Logements OSBL et logements Annees Cooperatives publics & OSBL du marche foncier prive Total 1987 3221 1 3151 1 637 1986 2521 3771 629 1985 1902 190 1984 1363 136 1983 1904 190 1982 2485 248 1 Rapport annuel SCHL 1987 Province du Quebec 2 Rapport annuel SCHL 1985 Province du Quebec 3 Rapport annuel SCHL 1984 Province du Quebec 4 Rapport annuel SCHL 1983 Province du Quebec 5 Rapport annuel SCHL 1982 Province du Quebec PLAN CANADA, 29:3/MAY/MAI 1989 35 REFEREED ARTICLE/ARTICLE SOU MIS A DES ARBITRES 1981 a 825 millions de dollars et l'aide Ce reseau est une source de legitima recemment de lancer un nouveau pro directe a 182 millions.31 Les redacteurs tion d'une intervention relativement auto gramme d'accession a la propriete auto avancent qu'on peut appliquer les meme nome. Par son savoir, elle dispose d'un nome ou d'aide a la mise de fonds a proportions au Canada sans risque de pouvoir politique. Pourrait-elle alors frei saveur nataliste qui evoque l'ancien se !romper. Or les abris fiscaux benefi nertoute politique qui risquerait de la des PAPPR. Mais ce nouveau programme cient necessairement davantage aux saisir de certains pouvoirs: controle de semble laisser sceptique !'Association investisseurs. A la non taxation des gains reglementation, encadrement de groupes, quebecoise des constructeurs, puisque !'habitat semble avoir ajoute aux avan relations privilegiees avec les institutions les menages de deux enfants et plus tages existants une nouvelle formule financieres? Les relations privilegiees sont une espece de plus en plus rare. particulierement interessante pour Jes avec l'industrie de la construction ne ris Entin, les etudes de la SHO temoignent investisseurs. A la-non taxation des gains queraient-elles pas d'interdire les jeux des memes preoccupations du marche de capital !ors de la vente d'une resi de pouvoirs que favorise un reseau plus et des developpements technologiques. dence principal, a la non-taxation du diversifie et complexe? II ne taut pas Apres les annees tastes de la construc revenu implicite du proprietaire occupant, oublier cependant que !'expertise des tion qui se sont poursuivies au Quebec a ete ajoutee, en 1985, !'exemption du cadres administratifs est precieuse pour jusqu'en 1987, les perspectives d'une gain de capital sur les premiers 500 000$. le gouvernement, s'il veut mener a bien baisse des mises en chantier orientent Ce montant, ensuite reduit a 100 000$ son oeuvre. L'ideologie neo-conservatiste I' aide gouvernementale vers la recherche en 1987, aurait ete un incitatif tres fort a fail d'ailleurs souvent appel aux experts et le developpement technologique fa la relance de la construction locative et ceux-ci jouent un role determinant vorable a de nouveaux types d'offre.34 privee. dans les decisions. Encore taut-ii que Quant a la politique municipale, elle ces experts assimilent parfaitement les tend de plus en plus a s'affirmer. Le d) Un affalbl/ssement du pouvo/r exigences de la logique du marche, telle gouvernement federal semble vouloir des cadres admlnlstratlfs? que conc;:ue par les nouveaux decideurs confiner les municipalites a la mise en Une autre caracteristique de la nouvelle et non seulement selon leur propre logi oeuvre des programmes sociaux et a un politique federale s'est traduite dans la que. En matiere de politique du logement, assouplissement de la reglementation. volonte de restructuration de la SCHL en les decideurs, comme nous l'avons vu, Mais telle ne semble pas etre leur fonction des nouvelles activites. Le re recherchent essentiellement le consen perspective. Au Quebec, elles veulent maniement de l'organisme met !'accent sus des representants de l'offre et des assumer un role de promoteur et, dans le sur la primaute des activites commer planificateurs des actions. cadre des pouvoirs qui leur sont delegues, ciales et de ses relations avec le monde intervenir plus directement qu'autrefois des affaires. Le role d'agent ou interme Conclusion dans la production directe du logement. diaire financier prend le pas sur son role Existe-t-il un contrepoids aces nouvelles Cette action a priori ne semble nullement d'agent ministeriel, fonction plus orientee tendances aux autres paliers gouverne compenser !'abandon de certains champs vers une politique sociale, tendance deja mentaux? II semble que non. La politique d'intervention des autres gouvernements. amorcee par le rapport Matthews de provinciale, que nous n'aurons pas le Au contraire, les municipalites intervien 1979.32 Cette reorganisation a abouti, en temps d'aborder dans le cadre de cet nent directement de plus en plus dans le 1986, a une reduction des effectifs de article, ne se dissocie guere de la poli secteur de !'habitation rentable. Elles ne 981 annees-personnes. Le personnel tique federale, du moins au Quebec. Les reculent meme pas devant la perte d'une totalise alors 3 016 employes (contre programmes conjoncturels, tels que Cor controle foncier de leur territoire en alie 3 700 en 1984 ), repartis en 50 bureaux vee, Equerre, et PAPPR, ont pris fin de nant leurs propres terrains a un coot (cont re 70 en 1 984 ). Des bureaux ont puis quelques annees. Les programmes meme inferieur au prix de revient (plutot ete fermes en 1985 et d'autres ont vu sociaux suivent la ligne proposee par le que par bail emphytheotique) pour sti leur statut modifie. Mais en 1987, on re gouvernement federal, c'est-a-dire l'ali muler leur marche.35 Mais !'orientation trouve 60 bureaux et seulement 3 029 gnement sur le marche. Les candidats de la politique du logement aux niveaux employes. Faul-ii voir dans cette reduc aux HLM sont diriges dans la mesure du provincial et municipal appellerait une tion de personnel la phobie conservatrice possible vers Jes logements du secteur analyse plus approfondie. des solutions bureaucratiques? ou la prive qui beneficient des subventions volonte d'alleger le controle bureaucra gouvernementales et qui voient ainsi Notes tique sur la qualite physique du loge leur taux de vacance baisser. Le nombre 1. "Housing Subsidies in a Period of Restraint: ment? ou encore la crainte d'un blocage de GRT, les Groupes de ressources The Canadian Experience 1973-1984," Re des reformes par une "geste" administra techniques indispensables a la formule search and Working Papers no 16, Institute of Urban Studies, Winnipeg, 1986. tive qui exerce un veritable pouvoir poli originale des cooperatives, diminue. Tout 2. Cf. notamment le discours de !'honorable tique? Comme nous l'avons montre re le secteur du logement social, y compris Bill McKnight devant !'association des munici cemment,33 cette geste dispose d'un LOGINOVE, incorpore au nouveau pro palites urbaines a Portage La Prairie le reseau relationnel important avec di gramme PARCO est d'ailleurs subor 02.12.1985. verses clienteles, institutions financieres, donne a !'entente federale-provinciale. 3. Blary, R., "Vocation et pouvoirs nouveaux groupes populaires et professionnels. Le gouvernement quebecois a essaye des municipalites en matiere d'habitation," 36 PLAN CANADA, 29:3/MAY/MAI 1989 REFEREED ARTICLE/ ARTICLE SOU MIS A DES ARBITRES Actualite immobiliere, vol. 9, no 1, printemps 13. Cf. Le Marche canadien de la renovation Search of a Policy, Toronto, Hakkert, 1982, p 1985. SCHL, fevrier 1986. En 1986, les depenses 248 ss. Cf. Aussi R. Blary, op. cit., partie IV, 4. Gouvernement du Canada, Document en renovation ont ete estimees a 13,8 mil chapitre I, par Pierre Durocher, qui montre la d'etudes sur le logement, janvier 1985. liards de dollars contre 13,2 milliards pour la tutelle etroite a laquelle la SCHL soumet les 5. Association canadienne des constructeurs construction neuve. En 1988, elles attein cooperatives, p. 207 et ss. d'habitation, lnstitut d'amenagement urbain, draient environ 15 milliards. II taut noter qu'au 24. Olson, S. et Taylor, M., "Les coopera lnstitut canadien des compagnies immobili Quebec, les depenses de renovation depas tives face aux fluctuations du marche de eres publiques, Association canadienne de sent les depenses de construction neuve !'habitation," Actualite immobiliere, vol. 8, no 1, l'immeuble, lnstitut canadien du logement depuis 1985. printemps 1984. prefabrique. 14. Discours de !'honorable Bill McKnight 25. Discours du ministre Stewart Mcinnes 6. Association des banques canadiennes, devant l'lnstitut d'amenagement urbain a du 08.05.1987 devant l'assemblee generale Association canadienne des courtiers en Toronto, 27.11.1985. annuelle cooperative du Canada a Halifax. valeurs immobilieres, Association canadienne 15. Auer, L., L'instabilite de l'industrie cana 26. Discours du ministre McKnight le des compagnies d'assurances, Caisses de dienne de la construction, Conseil economi 20.11.85. "Les perspectives d'avenir de la credit, Caisses populaires et autres. que du Canada, 1985; CHUNG, J., L 'instabilite maison prefabriquee au Canada" au congres 7. Fondation de !'habitation cooperative, As cyclique de la construction de logements au annuel de l'lnstitut canadien de !'habitation. sociation canadienne des responsables de Canada, Conseil economique du Canada, 27. Op. cit., p. 18. !'habitation et de l'urbanisme, Federation ca 1976. 28. Discours de !'honorable Bill McKnight, nadienne des municipalites, Organismes mu 16. SCHL, Le logement au Canada de 1945 ministre responsable de la SCHL devant !'As nicipaux de logement sans but lucratif, Or a 1986; vue d'ensemble et lec;ons a firer, sociation canadienne de l'immeuble, Edmon ganismes prives de logement sans but lucra 1987. ton, 28.10.1985. tif, Autochtones et Melis. 17. Discours du ministre McKnight devant 29. Fallis, C., Housing Economics, Butter 8. Association des consommateurs du Ca !'Association canadienne des responsables worths, Toronto, 1985, chapitre IX. nada, Conseil de developpement social, Or de !'habitation et de l'urbanisme a Toronto, 30. Divay, G. et Richard, L., L'aide gouverne ganisation nationale anti-pauvrete, Congres 18eme colloque annuel, 26.05.1986. mentale au Jogement et sa distribution sr;icia/e, du travail du Canada, Federation canadienne 18. SCHL, La reforme de la reglementation INRS, 1981, Eludes et documents no 26. du travail, groupes specifiques tels que !es et la rationalisation des processus d'approba 31 . Op. cit., pp. 62 et 75. handicapes, les personnes du troisieme age, tion comme mo yen de favoriser la production 32. Matthews, D.J., Report on Canada Mort le Comite sur la situation de la femme, les de logements abordables, mai 1986. gage and Housing Corporation, 1979, Minis retraites. 19. Blary, R., Habitat: du discours aux pra ter Responsible for CMHC, Task Force on 9. SCHL, Orientation nationale de la politique tiques, ~ditions du Meridien, 1988. CMHC. du logement, 1985. 20. Poitras, A. et Duff, J., Innovations tech 33. Blary, R., op. cit., partie IV. 10. Discours lors de l'assemblee annuelle nologiques en matiere d'habitation, Prelimi 34. Poitras, A. et Duff, J., Innovations tech de la Canadian Concerned Pensionners In naire, 1988. nologiques en matiere d'habitation et la pro corporated, Toronto, 01.05.1986. 21 . Gouvernement du Quebec, Se lager au duction de Jogements en dehors des modes 11. "Au-dela de la crise: les tendances dans Quebec, 1 984, p. 32. cf. aussi !es directives traditionnels, SHQ, 1988. le domaine de !'habitation," Col/oque habita de la SCHL concernant les HLM. 35. Gaudreau, M. et Lacroix, B., Effets de la tion 1982, 14.10.1982, INRS-Urbanisation. 22. Office municipal d'habitation de Montreal, participation des municipalites a la production 12. SCHL, Le logement au Canada de 1945 Memoire concernant Jes clienteles, le deve de Jogements pour le marche, INRS, 1988, a 1986: vue d'ensemble et lec;ons a firer, Joppement et la gestion, 31 .05.88. Etudes et documents no 57. 1987. 23. Dennis, M. and Fish, S., Programs in PLAN CANADA, 29:3/MAY/MAI 1989 37 REFEREED ARTICLE/ ARTICLE SOU MIS A DES ARBITRES De la cite ideale ala maison de banlieue famiale: Cexperience de Cite-jardin du tricentenaire, Montreal, 1940-1947 REFEREED ARTICLE/ARTICLE SOUMIS A DES ARBITRES MARC H. CHOKO ABSTRACT RESUME Between 1940 and 194 7, amid.st ajull-blown housing crisis in Entre 1940 et 194 7, dans un Montreal de locataires, en pleine Montreal, a city where a majority of people were tenants, a crise de logemen~ un petit graupe de personnes tente d 'inven small graup tried to create the ideal French-Canadian city as ter la cite ideale canadiennejrancaise, dans une version a modified version of the European and American garden adaptee des e::,,pmiences de citesjardins europeennes et ameri cities. Their main goal was to turn working-class Montrealers caines. Rendre l'ouvrier montrealais prop;ietaire d'unjoyer into hame owners so that they cauld raise theirfamilies in an permettant le plein epmwuissement de safamille dans un environment favourable to the preservation of French-Cana, milieu propice aperpetuer les valeurs canadiennesjrancaises dian Chiistian values. But the garden-city would came to a chretiennes, voila l 'objectif a l 'origine de cette entreprise. halt after the canstruction ofonly 167 houses which served as Mais Citejardin du tricentenaire s'arretera finalement administrative, technical and financial experiments jar the apres seulement 167 maisons qui auront suitaut semi de lieu federal government and led to the development of postwar d'expmimentations administratives, techniques etfi,nancieres residential sulYurbs. au gauvernementfedm-al, auvrant la voie au developpement des banlieues residentielles d 'apres-guerre. Montreal, ville de locataires biliser les energies et les ressources de vrieres du 198 siecle, en Europe comme Les Quebecois ant longtemps eu la dizaines de families, de syndicalistes, de aux Etats-Unis, vont egalement apporter triste reputation d'etre un peuple de congregations religieuses, d'une partie leur contribution. Plusieurs ouvrages4 /ocataires. Heureusement, taus Jes du mouvement Desjardins ... pour rea ont deja fait conna1tre ces courants de chiffres montrent que cela a change liser a Montreal la premiere cite-jardin, pensee et les quelques realisations qui (. . .) La ville de Montreal continue de modele de cite et de foyer familial destine s'en sont inspirees. faire exception.1 a essaimer a !ravers la ville et la province, La cite-jardin d'Ebenezer Howard va Cite-jardin du tricentenaire. permettre un pas en avant remarquable. S'il semble bien qu'en 1989 la plupart Vision globale d'une societe nouvelle, des grands problemes de logement, l'in Les origines de la cite-jardin completee par une description detaillee salubrite, le manque de commodites, Cite-jardin du tricentenaire constitue une des principes directeurs de planification l'entassement, ont ete dans !'ensemble tentative unique2 demise en oeuvre des urbaine et des voies possibles de realisa surmontes, le reve nord-americain de idees du mouvement des cites-jardins a tion, elle constitue une base credible nous rendre tous proprietaires demeure Montreal. Mais de quelles idees s'agit-il? d'action.5 Pour Ebenezer Howard, ii s'agit toujours une utopie pour les trois-quart Une elude approfondie des origines de contenir le fleau qui provient de la des montrealais. des idees qui vont animer le mouvement croissance demesuree des villes et des C'est pourtant d'une utopie qu'il y a des cites-jardins devrait rappeler !'impor maux que celle-ci entra1ne, en reconci cinquante ans deja certains esperaient tance des ecrits utopistes de Thomas liant la ville et la campagne. II taut com une solution. Inspires de leurs lectures et More a Charles Fourier en passant par biner les avantages de ces deux milieux de leurs visites en Europe, un avocat, M8 Robert Owne et nombres d'autres.3 de vie, sans en reproduire les inconve Joseph-Auguste Gosselin, et un jesuite, lnspirees de considerations plus im nients respectifs. le pere Jean-d'Auteuil Richard, vont mo- mediates, les experiences de cites ou- A l'origine, la cite-jardin se differencie 38 PLAN CANADA, 29:3/MAY/MAI 1989 REFEREED ARTICLE/ARTICLE SOUMIS A DES ARBITRES dans le cas de !'implantation de certains types de commerces; propriete individu elle et formule cooperative pour la fonc tion residentielle; etc. Par ailleurs, Howard prone la cohabitation des differentes couches sociales. Howard confiera la mise en oeuvre de ses idees a un jeune architecte, Ray mond Unwin, qui presidera a !'edification de la premiere cite-jardin, Letchworth, en 1903. Quelques annees plus tard, Unwin publiera un volume intitule "Town Planning in Practice. An Introduction to the Art of Designing Cities and Suburbs" (1909) et experimentera ses idees lors de la construction de la seconde cite jardin, Hampstead Garden Suburb en 1909. Cette ville (qui inspirera en 1914 les promoteurs d'une banlieue montrea laise du meme nom) est, comme son nom l'indique, une banlieue-jardin et s'ecarte done considerablement du con cept original d'Howard, que Welwyn Gar den City, construite dix ans plus tard, viendra rappeler. Pourtant c'est surtout Unwin qui va marquer profondement le mouvement des cites-jardins parses idees urbanis tiques, notamment sa conception des cheminements pietonniers, des groupe ments de maisons autour de voies d'ac ces en cul-de-sac (le «close») et !'intro duction de normes de densite residen tielle reduites.6 Le «mouvement moderne», ou urba nisme fonctionnaliste, represente par Le Corbusier et sa ville radieuse a la fin des annees 1920, constitue l'autre courant A Plan d 'ensemble de Cite-jardin du tricentenaire. La partie nard-est et toute la pmtie sud important qui va marquer une transfor n 'ant Jama'is eti! real'isees. mation du modele de la cite-jardin. II ne de la pensee hygieniste reduite essen reparties sur le territoire de la cite-jardin s'agit plus ici de chercher a creer la ville tiellement a une reforme de !'habitat. Au selon des zones separees par des es a la campagne, mais de reconstruire la dela de la construction de logements paces verts. Edifices publics, equipe ville selon une formule permettant de dans un ensemble de verdure, le mouve ments collectifs et transports en com mun combiner haute densite et espaces verts, ment des cites-jardins vise a !'edification (chemin de fer) viennent completer !'en par la construction de tours dans un de la cite modele, voir a !'emergence de semble et lui conferer ses attributs essen contexte de verdure. S'inscrivant resolu l'homme nouveau. La cite-jardin est une tiels d'autonomie et de lien avec la ville. ment contre toute nostalgie passeiste, le ville a part entiere, une implantation auto Au plan de la gestion, entre une pers mouvement moderne prone la produc nome, construite a proximite d'une grande pective socialiste privilegiant «l'entreprise tion en serie, !'habitat collectif et la planifi ville existante certes, mais sans en con municipale» et une perspective qu'il qua cation a grande echelle. stituer pour autant une expansion. Ce lifie d'individualiste, car elle laisse tout le Traverses d'inspirations et d'interets n'est done ni une banlieue, ni encore champ libre a l'entreprise privee, Howard divers, les initiateurs et les realisateurs moins une cite-dortoir. La cite-jardin preconise des combinaisons souples et de Cite-jardin du tricentenaire vont tenter d'Ebenezer Howard comporte des sec adaptables a chaque situation. La cite de concilier courants d'idees conserva teurs industriels et un vaste domaine jardin repose sur ce qu'on pourrait ap teurs et percees innovatrices, individua agricole propres aassurer l'autosuffisance peler une economie mixte: propriete lisme et entraide, autonomie et appuis au niveau de l'emploi. Ces activites sont collective des terrains et numerus clausus aux plus hauts niveaux. PLAN CANADA, 29:3/MAY/MAI 1989 39 REFEREED ARTICLE/ARTICLE SOU MIS A DES ARBITRES Cite-jardin du tricentenaire et entre 1923 et 1934 et d'accro1tre son 90 pourcent de ses habitants. Et !'organi ses modeles essor. Ces mesures sont a la base d'une sation de la communaute recouvre tous serie d'autres interventions gouverne les aspects de la vie spirituelle, intellec Gosselin et Richard n'ont pas seulement mentales qui aboutissent finalement, en tuelle et culturelle: eglises, ecoles, biblio etudie les idees du mouvement des 1948, a la designation de Welwyn com me theques, theatre, danse, artisanat, art cites-jardins. lls ont visite plusieurs d'en ville nouvelle. Les dirigeants de la cor culinaire, jeux, sports, etc. tre elles, se sont renseignes sur les reali poration avaient vainement tente de s'op Propriete unique du sol, zone verte sations de chacune. Dans ses nom poser a cette mesure car, si elle signifiait intouchable, multiplicite et distribution breuses tournees de propagande a tra un serieux coup de fouet pour !'expan segregee des fonctions, limitation de la vers la Province, Gosselin presente ces sion de la cite, elle impliquait surtout le densite residentielle, croissance et limi diverses cites-jardins etrangeres et se passage a !'administration publique du tation planifiees de la population et me reclame plus explicitement de trois d'en contr6Ie de son devenir.B lange des couches sociales, tous les tre elles comme inspiratrices de Cite II taut dire qu'en 1948 Welwyn pourra concepts originaux de Howard semblent jardin du tricentenaire: Welwyn Garden etre consideree comme un modele de trouver leur realisation dans Welwyn City, Cite-jardins du Plessis-Robinson et reussite de cite-jardin selon les criteres Garden City. Radburn. d'origine elabores par Howard, sauf peut Cite-jardlns du Plessis Robinson etre justement en termes d'envergure de son developpement. La cite-jardin Cite-jardins du Plessis-Robinson9 consti Welwyn Garden City compte 4 708 unites, dont 1 0 pourcent tue le vestige d'un projet de grande en C'est Ebenezer Howard lui-meme qui seulement d'appartements, pour une vergure qui devait couvrir toute la region achete la vaste propriete de 1 458 acres population de 18 500 habitants. Si la sud-ouest de Paris comprise entre qui servira de base de depart a la crea classe moyenne represente la moitie de Sceaux, Fontenay-aux-Roses et Velizy: tion de la troisieme cite-jardin anglaise, cette population, l'autre moitie est consti la «Cite-jardin du Grand Paris» des archi Welwyn Garden City.7 Le plan d'ame tuee de families ouvrieres. Seuls «les tectes Bassompierre, de Rutte, Sirvin et nagement, confie a l'architecte Louis de riches et les pauvres» sont absents de Payret-Dortail. Ce projet, qui devait Soissons, couvre pres de 2 500 acres et Welwyn. De plus, 69 industriels emploient amener la realisation d'une voie de prevoit une population finale de 40 000 8 000 personnes sur place, la majorite chemin de fer, d'une ligne de tramway et habitants. Le site, localise a vingt milles des autres travaillant dans les com d'un aeroport, d'une zone industrielle, de Londres, sur la meme ligne de chemin merces, les services ou !'administration. d'une cite universitaire et !'implantation de fer que Letchworth, la premiere cite En fail, Welwyn donne un travail a plus de de residences pour 100 000 habitants, jardin, inclut une importante zone indus s'inscrivait lui-meme dans une vaste ope trielle, un centre-ville commercial, des ration d'amenagement du territoire de la equipements culturels et une grande region parisienne. En effet, dans le cadre ceinture agricole. Les residences sont MARC H. CHOKO de la Loi du 14 mars 1919 prescrivant constituees principalement de maisons Projessein; depmtement de design, l'etablissement de plans d'amenage en rangees dont la plus grande partie Universite du Quebec a Montreal. ment et d'extension des villes de plus de sont louees, tandis qu'environ un quart Marc H Choko enseigne la sociologie et 10 000 habitants,10 la ville de Paris avail sont vendues. De la meme fa9on, les l 'histoire urbaine au depmtement de lance un grand concours pour !'exten design de L'Universite du Quebec a terrains industriels sont soit loues a court Montreal depuis 1979. Professeur invite a sion de Paris. Mais le manque de don terme, soil cedes par bail emphyteotique. l 'Institut national de la recherche nees economiques et sociales, le man Ainsi, la Welwyn Garden City Corporation, scientifi,que · Urbanisation, il est l'auteur que de volonte politique et de credits en comme voulu par Howard, conserve la de nambreuses recherches sur le logement font un simple concours d'idees. Paral propriete et le contr6Ie du sol. et la transformation du centre-ville de lelement, L'Office public d'habitations a La Welwyn Garden City Corporation Montreal et collabore a des travaux a bon marche du departement de la l'echelle nationale. Diplame de l'Universite est dirigee par un groupe d'hommes d'af 11 de Montreal en architecture et detenteur Seine, dans le cadre de sa politique faires et de professionnels, aux cotes de d'un doctorat en urbanisme de l'Universite d'acquisition fonciere de l'apres-guerre, Howard. Ce sont eux qui avancent ou Paris VIII, il est vice-president du Groupe avail achete 770 acres de terrain dans qui cautionnent les fonds de depart, de travail Logement et environnement quinze communes de la banlieue pari !'emission d'actions servant ensuite a Mti de l'Association intemationale de sienne, dont 143 acres de la famille alimenter les caisses. Mais les choses sociologie. Hachette au Plessis-Pique!. avancent lentement, malgre les appuis Marc H Choko est l'auteur des livres Crises Le projet de Cite-jardins du Plessis influents de Howard tant dans les milieux du logement a Montreal, 1860 1939, Robinson est confie a l'architecte Payret politiques que des affaires. Editions Albe;t Saint-Martin, 1980, Les Dortail par l'Office public. Une cite de grandes places publiques de Montreal, Le vote par le Parlement du Housing Editions du Meridien, 1987 et Une cite 5 000 habitants est prevue, comprenant Act de 1921, qui introduit les prets gou jardin a Montreal, La Cite-jardin du 1 200 maisons individuelles, quelques vernementaux aux cites-jardins, va per tricentenaire, 1940 - 1947, Editions du immeubles collectifs de trois etages, mettre a Welwyn d'obtenir des fonds Meridien, 1989. ainsi que des equipements publics. Re- 40 PLAN CANADA, 29:3/MAY/MAI 1989 REFEREED ARTICLE/ ARTICLE SOU MIS A DES ARBITRES liee a Paris par une ligne de tramway, moyennes cedent la place aux duplex, triplex et appartements coopera cette cite aurait abrite des employes et «moyennes-basses», puis aux ouvriers. tifs.1s Ouvriers qualifies, cols blanc, petits des fonctionnaires ainsi que des intellec commerc;:ants et professionnels consti tuels et des artistes. Mais meme ce projet Radburn tuent la clientele de base.16 En 1926, la tronque ne sera que partiellement rea Radburn12 est !'oeuvre des efforts de City Housing Corporation revend 21 acres lise. Les Lunettes, soit la partie nord, acci quelques architectes, penseurs et non construits a un prix trois fois plus dentee du site, comprendra finalement hommes d'affaires americains, membres eleve que celui qu'elle avait paye. C'est 217 logements (sur les 282 prevus) et 6 ou proches de la Regional Planning ce profit speculatif «involontaire» qui per boutiques, construits en 1925 - 1926. De Association of America, fondee en 1923. mettra de degager !'argent necessaire au plus, la composition meme des resi Clarence Stein, Henry Wright, Alexander demarrage d'un projet beaucoup plus am dences a ete largement modifiee et 73 Bing, Frederick Ackerman, Lewis Mum bitieux,d'une veritable cite-jardin, Radburn. logements seulement sont des maisons ford en constituaient les figures domi Radburn, situee a 15 miles de Man individuelles, accolees aux immeubles nantes. Puisant aux sources de Ho hattan, dans Fair Lawn, New Jersey, avait collectifs de trois etages ou groupees ward,13 !'Association developpe des prin ete retenue parmi 77 sites etudies. Le par deux. Tous ces logements sont loca cipes similaires adaptes a la situation ame coot du sol et !'absence de reseau de tifs. ricaine. A titre d'exemple, si la speculation rues et de zonage avaient largement II faudra attendre la Loi Loucheur de est denoncee et la maison unifamiliale pese en faveur de ce choix. Les 640 1928, favorable au financement public isolee critiquee, un profit raisonnable est premiers acres furent acquis secrete des habitations a loyer moyen, pour que considere com me legitime et la propriete ment de 46 proprietaires differents, en la construction de la cite-jardin reprenne, residentielle individuelle recherchee. 1927. Les achats subsequents allaient sous !'impulsion d'un conseil general a La premiere ebauche d'intervention,14 finalement doubler cette superficie. Le majorite social-democrate, en 1929. Mais conc;:ue pour accommoder 25 000 habi total suffisait pour planifier une cite de ii s'agit a nouveau d'un projet largement tants sur un site de plus de 500 acres, a 25 000 a 30 000 habitants, mais ~as modifie. En raison des conditions eco Brooklyn, echoue, le terrain ayant ete pour l'entourer d'une ceinture verte, dont nomiques, les coats de construction et vendu a un promoteur qui s'empressera l'idee fut abandonnee. Les plans realises d'occupation des maisons individuelles de le lotir. Pour L'Association, c'est !'oc par Clarence Stein et Henry Wright re etaient devenus prohibitifs. II fut done casion d'affirmer ses positions et !'articu prennent et modifient certains elements decide de planifier des immeubles col lation entre sa pensee urbanistique et de base des cites-jardins anglaises, no lectifs de 2 - 3 etages, disposes en ses preoccupations sociales. Ainsi, le tamment les culs-de-sac qui sont ici grands alignements proches des con developpement residentiel peripherique systematiquement utilises. Ceux-ci sont ceptions de !'architecture fonctionnelle est pose comme une alternative a la agences en un «super-bloc» qui ame allemande et comprenant 5 593 loge renovations urbaine a des fins residen nage un grand espace vert collectif au ments. Une eglise, trois ecoles, une tielles, trop co0teuse en sols et en demo centre et des cheminements pietonniers mairie, des services sociaux, un marche, litions. Mieux vaut acheter du sol agricole ces «super-blocs» sont relies par des une piscine exterieure, une salle de con et consacrer !'argent aux logements et passerelles et des tunnels permettant certs, un restaurant, un terrain de jeux, aux equipements. Strategiquement, !'As une separation complete des pietons et un theatre de plein air et deux terrains de sociation opte pour un demonstration des automobiles. Fin 1929, Radburn sport devaient completer le tout. De par etape. Dans un premier temps, ii compte 170 maisons unifamiliales (iso 1931 a 1939, 1 991 logements sont s'agira de realiser un morceau de cite lees, jumelees ou en rangees), 1O mai construits, dont 56 maisons individuelles, jardin en se servant au maximum des sons de deux logements et 92 apparte ainsi qu'une ecole, le marche et lester infrastructures existantes. Trop chers au ments. Une ecole et quelques magasins rains de sport. Dans les annees 1950 - depart pour etre accessibles aux families completent !'ensemble. Mais !'implanta 1960, 2 500 logements seront ajoutes a bas revenus, les logements realises tion d'industries est un echec presque selon le modele des «grands ensembles» constitueront une base experimentale. total. De plus, les maison co0tant plus de de la reconstruction, ainsi que trois L' Association suscitera l'interet et attirera deux fois le prix moyen de l'epoque aux ecoles. la bienveillance des milieux financiers et Etats-Unis, ne sont accessibles qu'aux Comme !'ensemble des «cites-jardins» gouvernementaux, qui permettront par cols blancs et aux professionnels. Cette de la region parisienne, Plessis-Robinson la suite de realiser de veritables cites homogeneite,1 7 non souhaitee par ses devient un «faubourg-jardin» ou une jardins pour tous. initiateurs, sera en fail a l'origine de l'at «banlieue-jardin», simple sorte de cham Les travaux de construction de Sunny trait de Radburn pour ses residants et a bre de decompression, de decongestion side Gardens debutent des 1924. Pour la source du succes de la multitude d'or de la capitale. Au depart, conc;:us «a l'an sa realisation, le groupe, mene par Alex ganisations communautaires qui fleuri glaise», !'architecture et l'agencement ander Bing, fonde la City Housing Cor ront: association de citoyens avec 18 comi des logements se reorientent rapide poration, compagnie a dividende limite. tes, clubs d'artisanat, de bridge, de sports, ment vers des preceptes du courant Le terrain de 76 acres sert en partie a la etc. En 1930, 115 unites sont ajoutees, «architecture moderne» de plus haute construction de 1 202 unites reparties 16 en 1931, puis 11 en 1932, couvrant densite et de fonctionnalite. Les couches en maisons unifamiliales en rangees, en tout 149 acres, dont 23 de pares. PLAN CANADA. 29:3/MAY/MAI 1989 41 REFEREED ARTICLE/ ARTICLE SOUMIS A DES ARBITRES Frappee par les difficultes financieres un contexte propice a renforcer l'identite lion avec la Confederation des travailleurs dues a la crise, la City Housing Corpora canadienne-frangaise et ses valeurs. catholiques du Canada a Quebec, des tion doit declarer faillite en 1934. La crise L'objectif central consiste a rendre l'ou 1939, echoue en raison du manque economique entra1ne la chute ou la vrier canadien-frangais proprietaire d'une d'appui de la municipalite. A Montreal, a perte des revenus des residants, qui ne demeure vaste et saine permettant a sa la suite de plusieurs assemblees tenues peuvent plus faire face a leurs mensua famille de s'epanouir pleinement, notam a partir de mars 1940 et destinees a lites. Radburn s'arrete avec 1 500 habi ment par une progeniture nombreuse. regrouper les families interessees a l'en tants. De sa population active, 70% L'epargne et l'entraide doivent y con treprise, le groupe se met a la recherche travail lent a New York. Peu a peu, apres courir. Mais ii taut egalement veiller a ce de terrains. Les coOts eleves vont le guerre, Rad burn verra la population aug que cette maisonnee soil entouree d'un pousser a arreter son choix sur un em menter a 3 000 habitants, mais fondue milieu sain. Le voisinage, l'encadrement placement assez isole, non encore des dans l'etalement general de la banlieue des families prend alors toute son impor servi par le transport en commun, dans new-yorkaise, elle deviendra un morceau tance. Gosselin et Richard vont done l'est du quartier Rosement, achete en de banlieue dortoir. articuler les idees tirees des experiences octobre 1941 .18 Des le mois suivant, les etrangeres a leur contexte particulier, travaux de construction de 16 maisons La Cite-jardin modele de cite rechercher les appuis des mouvements demarrent, finances a meme les fonds et de foyer familial canadien syndical et cooperatif et de l'Eglise, bas personnels de 55 des 350 membres que francais tions de la petit-bourgeoisie canadienne compte alors !'organisation. Parallele Pour les initiateurs de Cite-jardin du tri frangaise catholique, afin de developper ment, les dirigeants lenient de finaliser centenaire, Gosselin et Richard, ii ne un modele de cite-jardin adapte au un plan d'ensemble de la cite-jardin com s'agit pas seulement de concevoir un Quebec. prenant 500 a 600 maisons, une eglise, habitat ouvrier sain. II taut le situer dans Une premiere tentative en collabora- un centre commercial, des equipements CUSO offers you a challenge. The chance of a lifetime. Two years living in another culture and an opportunity to work with others who are striving to improve their lives. Currently, we are seeking: URBAN PLANNERS Vanuatu- development planning officer with experience in community based regional planning in isolated areas Indonesia- planner with Master's plus experience to work in Sumatra (preference for some municipal experience) Mozambique- urban planner with experience ECONOMISTS We need people who want more than 9 to 5. Burkina Faso- relevant training and experience with People willing to t1y something different. co-ops and small business Salaries are modest but cover overseas living Seychelles- (bilingual position) relevant degree and costs, and there is a generous benefits package. experience for land and sea transportation Mozambique- Master's or PHD in Economics plus Interested in joining us? Then send your resume teaching experience to: CUSO, BT-18 135 Rideau Stt·eet Ottawa, Ontario ----- We need CVs for any adult who will accompany you. Canada KlN 9K7 ------=-- --=- -=- -=-- 42 PLAN CANADA, 29:3/MAY/MAI 1989 REFEREED ARTICLE/ ARTICLE SOU MIS A DES ARBITRES objectifs du groupe de ses dirigeants et ceux de !'Administration nationale du logement. Les premiers voulaient creer une cooperative d'habitation financee par le mouvement Desjardins. Les se conds les amenent a construire des maisons grace aux fonds de la Sun Life Assurance Co. (qui prete ainsi pour la premiere fois dans l'est de Montreal). L'Administration nationale du logement voulait de petites maisons construites en serie. L'Union economique d'habitations s'oriente d'abord vers des demeures singularisees et coOteuses. Gosselin re vait de devenir le «monsieur habitation» du Quebec. Le gouvernement federal fournit a Richard et a Gosselin !'occasion de collaborer a d'importants comites canadiens avant tout preoccupes par une situation dominee par les problema tiques ontariennes.20 A la suggestion de F.W. Nicolls, le di A Vue d 'avion de Cite-Jardin du tricentenairevers 194 7. On remarque les rues en cul-de--sac et, au centre, la permanence qui abrite Les nombreux senJices de l 'Union economique d 'habita recteur de !'Administration nationale du tions ainsi que la cha.pelle, le magasin cooperatif et les salles communautaires. logement, Gosselin et Dallaire visitent plusieurs types de maisons prefabri collectifs et un vaste pare central. Plu de developper ses activites au Quebec quees. Finalement, le groupe opte plutot sieurs architectes montrealais, Payette et comptait sur un organisme comme pour des maisons dessinees par les et Crevier, Donat Gascon, Louis Parant, !'Union economique d'habitations - architectes Louis Parant et Donat Gas Jean Gagne, y travailleront successive groupe fonde en octobre 1940 par Gos con, en collaboration avec les membres ment. Mais c'est l'architecte-urbaniste selin, Philippe Ferland et Lorenzo Dallaire de la cite-jardin. Plus vastes, plus coO Samuel Gitterman, un Montrealais d'ori pour realiser des cites-jardins a Montreal teuses, ces maisons qui ne repondent gine, passe a l'emploi de !'Administration et dans d'autres villes du Quebec - pas aux normes de !'Administration du nationale du logement a Ottawa, qui aura pour mettre au point les processus d'ac logement, notamment au coot maximal un apport decisif dans la forme finale du ceptation des plans, de financement, de de 4 000,00 $ !'unite, sont inaccessibles projet. Gitterman, forme a l'Ecole d'archi controles des travaux en serie ... per a la plupart des ouvriers montrealais. tecture de l'Universite McGill, dont ii est mettant le developpement de grands Aussi, au lieu d'entreprendre un chantier etudiant de 1930 a 1935, avait eu pour projets residentiels. De leur cote, les diri minimal de 100 maisons tel que prevu, professeur Percy Nobbs et s'etait fami geants du projet, confrontes a la politique ce sont plutot 16 maisons qui sont mises liarise avec les plans de cites-jardins et de laisser-faire des gouvernements mu en construction en octobre 1941 et inau notamment le modele de Radburn, fort nicipal et provincial, puis au rejet des gurees en grande pompe le 2 aoOt 1942, en vogue dans ces annees, et publicise syndicats et du mouvement Desjardins, dans le cadre des fetes officielles du par plusieurs membres du Town Planning voyaient dans le gouvernement federal 300° anniversaire de la fondation de Institute of Canada.19 leur interlocuteur et leur soutien privilegie, Montreal. Entre cette date et la fin 1946, Comment expliquer cette implication auquel, malgre leur nationalisme originel, 151 autres maisons seront baties, par du gouvernement federal dans un tel ils devinrent de plus en plus lies. Ce chantiers de 16 a 28 maisons. projet? A l'origine, Gosselin et Richard, mariage de raison sera presente comme Leur coot sera beaucoup plus eleve les initiateurs du projet, vont trapper a une etape permettant la croissance de que prevu en raison de la taille reduite toutes les portes afin de tirer parti de l'entreprise, l'apprentissage de connais des chantiers, des difficultes de finance toutes les aides possibles. Or la Loi na sances essentielles et la realisation d'ex ment, du coot des materiaux, des retards tionale sur !'habitation de 1938 offre des periences pilotes qui pourront ensuite pour les obtenir ... bref du contexte, dont avantages quant aux hypotheques et etre poursuivies de fai;on autonome, ou les problemes lies a l'economie de guerre aux taxes foncieres municipales. Con en liaison avec les interlocuteurs provin ne sont pas des moindres. Ceci fera tact est done pris avec les dirigeants de ciaux desormais convaincus du bien qu'en 1946,21 sur 133 proprietaires dont !'Administration nationale du logement a fonde de tels projets. nous connaissons la profession, 16 sont Ottawa. Par un concours de circonstances Cite-jardin du tricentenaire va done professeurs, 15 comptables, 12 commer ce contact se fera de plus en plus etroit. etre batie dans un climat de collabora i;ants, 10 voyageurs de commerce, 9 Le gouvernement federal etait desireux tion, malgre les contradictions entre les ingenieurs, 7 techniciens, 6 courtiers PLAN CANADA, 29:3/MAY/MAI 1989 43 REFEREED ARTICLE/ARTICLE SOU MIS A DES ARBITRES d'assurances et 12 appartiennent a di forces et des idees subversives» au sein membres de la cite-jardin qui vont en verses professions liberales. Seuls 15 de la classe ouvriere - et sur ses trainer le retrait de l'Eglise, puis sa vo ouvriers, tous specialises sauf un, et champs privilegies d'activite - le gou lonte de mettre fin a l'entreprise. Mon quelques employes des services et arti vernement provincial commence a s'im seigneur Charbonneau et Maurice Du sans ont pu s'etablir a la cite-jardin. miscer dans les affaires sociales.23 plessis se feront allies pour !'occasion et Agents de ma1trise, inspecteurs, policiers D'autre part, des tensions internes se le Comite de realisation qui remplacera et un pompier completent le groupe. developpent entre les tenants d'une ligne de force les dirigeants sera en fail un Comme Cite-jardin du tricentenaire traditionnaliste (incarnee au debut des comite de liquidation de l'entreprise.26 ne peut fournir du logement aux ouvriers annees 1940 par l'eveque de Rimouski, canadiens-frangais, les dirigeants de Mgr Courchesne) et ceux favorables a Reforme du logement, cite l'Union economique d'habitations en font une certaine ouverture (comme Mgr ideale et homme nouveau un projet-demonstration devant permet Charbonneau, archeveque de Montreal, A !ravers leurs projets de reforme du tre la mise au point du processus de pr6nant l'action catholique specialisee logement, les hygienistes et les mora production de cites-jardins ouvrieres pour articulee au milieu de vie, voire l'appel a listes entrevoyaient la possibilite de trans l'apres-guerre. Formation de profession des la'ics, la mise sur pied d'organismes former l'ouvrier dans son corps et son nels specialises, mise sur pied de struc non confessionnels dans de nouveaux esprit. Les motivations pouvaient differer tures et de mecanismes de financement, champs d'action (comme le pere ou se conjuguer de l'un a l'autre: eviler de construction ... prennent bient6t le Georges-Henri Levesque, president du les maladies, les epidemies, la mort, par pas sur la realisation de Cite-jardin du Conseil oeucumenique ).24 humanisme; empecher que ces maux tricentenaire meme. Pour les dirigeants Dans le domaine du logement qu'elle n'atteignent les beaux quartiers; faire de l'Union economique d'habitations, ii a largement delaisse depuis les annees diminuer les frais de sante ou accroitre ne s'agit plus seulement de loger et 1920 et qui est devenu crucial a Montreal le rendement de la main-d'oeuvre, etc.; d'encadrer quelques centaines de fa pour un Ires grand nombre de families, faire accepter par les ouvriers les valeurs milies a Montreal, mais plut6t decreer le l'Eglise constate !'intervention grandis de la societe bourgeoise, afin d'eloigner modele de cite et de foyer familial cana sante de forces pr6nant des solutions les idees subversives; elargir leur con dien-frangais capable de susciter et de contraires acelles qu'elle envisage. Fred sommation, etc. Mais l'objectif ultime et guider le developpement de cites-jardins Rose et le Parti ouvrier progressiste ont le moyen de l'atteindre etaient ceux partout a !ravers le Quebec. entrepris une vaste campagne de lutte traditionnels de tous les grands courants Dans cette entreprise, le pere Richard contre les hausses de loyer et les evic d'utopie ancestraux: fagonner un homme va bient6t reussir a entra1ner plusieurs tions et reclament la construction mas nouveau en agissant sur son milieu. congregations religieuses et d'abord la sive d'habitations a loyer modique pu Le projet de Gosselin et de Richard Compagnie de Jesus, puis monseigneur bliques.25 Le gouvernement federal et les s'inscrit parfaitement dans cette ligne. Charbonneau qui intercede personnelle grandes entreprises favorisent le de Pour eux, ii s'agit de creer des «11ots de ment en faveur du projet en mai 1944. veloppement de grands projets d'ensem conquete», premiers presages des «cites L'argent qui afflue permet la poursuite du bles d'immeubles locatifs finances par le nouvelles»29 qui se multiplieront autour chantier alors en difficulte. Pour L'Eglise, grand capital, notamment les compa des villes industrielles decadentes et les raisons d'intervenir sont bien evidem gnies d'assurances.26 Et la petite-bour serviront de base de depart pour une ment Ires differentes de celles du gou geoisie montrealaise se tourne de plus grande croisade. Croisade contre le vernement federal. Dans une lettre d'ap en plus vers les immeubles locatifs prives manque d'hygiene et la maladie; contre pui a l'Union economique d'habitations du centre de Montreal comme mode la licence, le cosmopolitisme et la perte adressee a une vingtaine de commu d'habitat privilegie.27 des valeurs traditionnelles canadiennes nautes religieuses, monseigneur Char Le appuis de L'Eglise vont permettre frangaises; contre les maux du capita bonneau declare: de poursuivre la construction de Cite lisme effrene des trusts etrangers; contre jardin du tricentenaire et ouvrir quelques la monte des forces subversives resul Son Excellence croit le moment op portes ses dirigeants, dont celles du tant des conditions faites aux ouvriers, portun d'appuyer efficacement ce a Conseil superieur de la cooperation. etc. Pour ce grand dessein, ii ne suffit groupe pour Jui faciliter sa tache et Gosselin reve de mettre sur pied une pas de mettre au point une nouvelle prevenir que des mouvements sub association provinciale de logement, une «machine habiter», II taut en contr6Ier versifs ou des projets inaptes aux a caisse provinciale de financement resi l'environnement, maitriser le cadre de besoins de nos famil/es canadiennes dentiel, une cooperative d'achat groupe vie, encadrer la vie. Ceci mene apporter fran9ais n'apportent des solutions a des materiaux ... et une bonne part de un soin particulier l'amenagement du mauvaises ou bofteuses a un pro a ses energies et des fonds de l'Union site, au choix des residants, aux equipe bleme pressant.22 economique d'habitations sont bient6t ments communautaires et a !'organisa L'Eglise doit alors faire face a de orientes dans ce sens. Ce son! cette tion de la vie associative. «L'11ot de con graves problemes. D'une part, des dan marche forcee en avant, les interets di quete» devient une cite close, spatiale gers exterieurs menacent son hegemonie vergents qu'elle heurte et les dissensions ment isolee, socialement homogene et sur les consciences - «La montee des grandissantes au sein du groupe des segregative. 44 PLAN CANADA, 29:3/MAY/MAI 1989 REFEREED ARTICLE/ ARTICLE SOU MIS A DES ARBITRES mouvement de pensee une evidence premiere. Ainsi, l'ouvrier sera responsa bilise, attache a son foyer, tenu loin du bistrot, de l'alcoolisme, du communisme. Mais cela ne doit pas se faire dans n'im porte quelles conditions. Au logement sain, aere, ensoleille, ii faut un environne ment propice: verdure, bon voisinage, vie associative et vie religieuse bien or donnees. L'Union economique d'habita tions «poursuit une oeuvre hautement humanitaire de relevement social et d'education populaire, mettant en valeur !'importance de l'epanouissement de la famille dans un milieu offrant toutes les garanties morales, sociales et mate rielles,,_32 Pour cela, !'Union economique d'habitations se propose de «recreer pour la famille, cellule premiere du groupement humain, le milieu propice a son epanouissement».33 A Vue de la rue des Marronniers vers 1946. Si les grands desseins de Gosselin et Richard passent bien par la reforme du logement, celle-ci n'est pour eux qu'ins Dans le projet de Gosselin et Richard, compagnonnages !ouches de la ru trumentale. A ceux qui ne revent que le caractere segregatif est particuliere re/le, du fond de cour et de la taverne. d'un chez-soi, ils opposent leur reve de ment marque du fait qu'il s'agit de recreer Toutes ces decheances se traduisent sacrifices pour le bien de tous. Tirailles la «cite chretienne,, canadienne-fran9aise. brutalement com me suit: tubercu/ose, entre leur role naissant d'experts et leurs Lorsque les coots des maisons aug maladies veneriennes, a/coolisme, ideaux superieurs, ils finissent par de mentent. la selection se fait plus precise rachitisme, debilite mentale et folie, noncer ceux qui comptent, mesurent, encore, limitant la cite-jardin la seule criminalite juvenile, promiscw1e sexue/ a evaluent, comme autant d'esprits etri petite-bourgeoisie catholique cana le, gangsterisme, abandon de la pra ques, sans vision. Leur veritable lutte est dienne-fran9aise. II faudra alors modifier tique religieuse, perte de la foi, de celle de la sauvegarde des valeurs ca une partie du discours: la petite-bour christianisa tion progressive des tholiques, de la «race et de la culture geoisie devient la «classe phare", seule masses ... .30 canadienne-fran9aise», de !'Homme et apte montrer l'exemple, consentir a a De plus, !es grandes villes industrielles de son a.me. Et ces objectifs ultimes vont pour cela les sacrifices necessaires ... comptent une large minorite de locataires. devenir en grande partie la justification puisque les grands bourgeois ont perdu A Montreal, la crise economique aidant, de leurs actes et la source de leur op de vue les valeurs morales et que la leur pourcentage atteint le chiffre excep position croissante aux reformistes du classe ouvriere est de plus en plus sujette tionnel de 88,5% au recensement de logement. aux idees subversives. A cela, une grande 1941. explication est mise de l'avant. L'urbani ldeologie et economie du sation acceleree liee a !'industrialisation Une caracteristique de /'habitation logement est l'origine de conditions de vie deplo urbaine moderne est la decheance a L'histoire du logement, au Quebec rables dont le symbole ultime, le taudis, progressive de la petite propriete fami comme ailleurs, montre la forte charge est source de toutes les decheances: /iale marchant de pair avec la proleta ideologique qui anime tout discours en risation croissante de la population ... decheances physiques du cote du ce domaine. Mais les preoccupations urbaine: phenomene extremement pere et de la mere, du cote des en economiques vont se faire de plus en grave, quand on songe a la valeur fants surtout qui, pour s'epanouir a la plus presentes, surtout lorsque, avec sociale de la petite propriete. S.S. Pie vie, ant autant besoin d'air, de lumiere XI, dans Quadragesimo Anno, indi !'emergence des enjeux urbains con et d'espace que de nourriture et de quait dans /'accession ala petite pro cernant le redeveloppement des cen sommeil; decheance intellectue/le des tres-villes et la planification du deploie priete, le moyen le plus efficace de parents sombrant peu a peu dans un faire barrage /'assaut des forces ment des banlieues, tout la problematique abrutissement qui gagne /es enfants a revo/utionnaires.31 du logement sera resituee dans une et que l'ecole s'efforcera en vain de perspective beaucoup plus large. Les dissiper; decheance morale enfin, Supprimer le taudis et rendre l'ouvrier penseurs europeens et americains du fruit des promiscuites inevitables, des proprietaire constituent done pour ce mouvement des cites-jardins vont cons- PLAN CANADA, 29:3/MAY/MAI 1989 45 REFEREED ARTICLE/ARTICLE SOUMIS A DES ARBITRES tamment articuler ce discours a deux PROPR!ETE garantit le sa/ut de la nismes et leurs activites de charite tradi niveaux: economique et social. SOC!ETE. L'INDUSTR!E du BAT/ tionnelles commencent a etre battus en Gosselin, a la recherche du finance MENT garantit L'ACTIVITE ECO breche par les differentes initiatives gou ment prive, decrit ainsi les mobiles de NOMIQUE du pays. Travail/er a mieux vernementales, ii s'agit en grande partie l'Union economique d'habitations: lager notre peuple, c'est travail/er de se menager de nouveaux espaces pour nos famil!es, notre societe, notre d'intervention, de se preserver un role de - Economique: faciliter aux compa prosperite.35 meneur d'opinion, sinon de censeur des gnies de finance des placemerlts se consciences. rieux,· creer du travail pour patrons et L'ampleur de ce programme de rele Pour le mouvement cooperatif, les ouvriers; deve/opper /es ventes des vement moral et economique des Cana associations de commerc;ants et de pro fabricants et fournisseurs de mate diens-Franc;ais, la volonte de developper prietaires, le president du comite executif riaux. une expertise, d'introduire des nouvelles de Montreal et la majorite du conseil - Social: donner a la famille, cellu/e techniques de construction et de produire municipal issus des petites et moyennes de la societe, le milieu propice a son en serie des logements familiaux a bas bourgeoisies canadiennes-franc;aises, ce epanouissement. 34 couts ... , conjuguees a la force de travail sont le discours corporatiste et nationa Generalement. l'ordre s'inverse et les et de persuasion de Gosselin et Richard, liste et ses accents volontaristes qui im ingredients, ici resumes dans un tract, expliquent certainement qu'au debut des portent. Et puis l'exemple de ces individus presentent ainsi cette double volonte activites de l'Union economique d'habita consentant des sacrifices, s'entraidant d'intervention, ideologique et economique: tions, tous les milieux influents et agis et cultivant leur jardin en cette periode sants aient ete favorables. Mais leurs de troubles, de controle des loyers, de La MAISON garantit la sante physique motivations sont souvent bien differentes. revendications «subversives,, pour des et morale de la FAMILLE. LA PETITE Pour l'Eglise catholique, dont les orga- logements publics et d'occupations de I.C.U. CONGRES '89 C.I.P. CONFERENCE '89 6-9 AOOT AUGUSTS-9 Saint-Jean, Nouveau-Brunswick Saint John, New Brunswick Theme: "L'urbanisme: au-dela des contrfiles" Theme: "Planning: More Than Controls" L'urbanisme n'est pas limite au contr6le de !'utilisation A planning function which merely emphasizes land du sol. use controls is not enough. Le theme central du congres de 1989 de l'Institut The main theme of the 1989 Canadian Institute of canadien des urbanistes abordera le r6le de "leader" Planners conference will explore the role of the de l'urbaniste. Ce dernier doit etre en mesure planner as leader. Today's planner must be capable of d'orienter !es changements de nature sociale, providing direction for social, economic and physical economique et physique et de jouer un r6le de change and must play a major part in implementing premier plan dans la mise en oeuvre de ces those changes. changements. Les sujets abordes au cours du congres seront repartis Conference subthemes will focus on the available en deux grands valets et traiteront surtout des skills and tools needed to lead our organizations. competences et des outils necessaires pour diriger These will be divided into two broad topics: Human nos organismes. Resources and Strategic Planning. Prevoyez des maintenant d'y assister. Make plans now to attend. Pour obtenir d'autres renseignements, veuillez For further information contact: communiquer avec: Gilles Guerette Bernard Moe Institut canadien des urbanistes Canadian Institute of Planners Congres 89 Conference 89 C.P. 1971 P.O. Box 1971 Saint-Jean (Nouveau-Brunswick) Saint John, New Brunswick E2L4Ll (506) 753-7749 E2L 4Ll (506) 658-2865 46 PLAN CANADA, 29:3/MAY/MAI 1989 REFEREED ARTICLE/ ARTICLE SOU MIS A DES ARBITRES centres dans quelques grands centres urbains dont Montreal, deviennent des enjeux d'importance. Comme premiere mesure, Ottawa en treprend de contr6Ier le coot des loyers. Mais a Montreal, face a !'opposition d'une tres grande majorite des conseillers municipaux et de groupes de pression influents, telles les ligues de proprietaires et la Chambre de commerce, ii taut at tendre aoOt 1945 avant que cette mesure ne puisse etre imposee, a la faveur de !'evolution des positions de certains inter venants, comme le Montreal Board of Trade. Cette premiere confrontation augurera des difficultes que le gouverne ment federal rencontrera au Quebec, et a Montreal en particulier, pour faire ac cepter ses politiques de logement. Des 1940, certains milieux au sein du gouvernement federal proposent d'aller A Vue de la rue Viau vers 1946. plus loin et d'intervenir directement dans le processus de production du logement, logements menees par le Parti commu Une periode d'hegemonie afin d'agir egalement sur la disponibilite. niste, ne peut etre que benefique. Pour federale La mise sur pied de !'Administration na les liberaux au pouvoir a Quebec et sur tionale du logement (National Housing tout pour le gouvernement federal, c'est Une des questions centrales qui se joue Administration) et !'institution de son de plut6t le «modernisme» de !'organisation au tournant des annees quarante est partement d'urbanisme a partir de 1942, et de la mise en oeuvre du projet qui celle de !'intervention du gouvernement la mise en place, des 1941 , d'une struc merite attention: centralisation des struc federal dans le domaine du logement et ture complementaire, la Wartime Housing tures de pouvoir, professionnalisation des rapports qu'il entretient a ce sujet Limited, et !'adoption du code national du des services, experimentation de nou avec le gouvernement provincial et le batiment marquent la volonte federale veaux materiaux, production en serie, pouvoir municipal. Tout aussi importante de contr6Ier les projets soumis, puis nouveaux debouches de financement est la question des rapports qui s'etablis d'acquerir !'initiative dans le developpe pour les institutions privees. sent alors entre le gouvernment federal ment des normes, de mettre en place Peu a peu, les realisations eclairent le et les groupes d'interets representant des processus administratifs coercitifs, discours, !'action prend le dessus, les certaines forces sociales et economi et enfin de prendre en charge la produc contraintes du quotidien priment ... Mais ques sur la scene locale. tion d'une partie des logements. Pour les ce discours, parfois «amenage» pour les Jusqu'en 1940, les tentatives federales dirigeants de !'Administration national du besoins de la cause,36 les dirigeants de demeurent limitees a des mesures inci logement et de la Wartime Housing Lim l'Union economique d'habitations le tatives, auxquelles Quebec et les muni ited, ii s'agit de resoudre les problemes maintiendront jusqu'au bout. Alors les cipalites quebecoises restent insensibles, de coot et de disponibilite du logement contradictions se feront de plus en plus voir opposees. De maniere generale, les ouvrier, tout en contr6Iant la qualite. evidentes. La premiere difficulte majeure, pouvoirs publics au Quebec refusent Les modeles types implantes a travers fondamentale provient du coot de cons d'intervenir sur le marche du logement et tout le Canada et au Quebec seront truction des maisons unifamiliales, les groupes d'interets ne s'en preoccu limites, pour l'essentiel de la production, meme celles d'un modele minimal. II pent que de fagon ponctuelle. En conse a deux: l'unifamiliale isolee, pour !'acces faudra abandonner tout espoir de voir quence, au contraire de !'Ontario, le sion a la propriete; le «walk-up», pour le les ouvriers acceder a la propriete resi Dominion Housing Act de 1935, puis sur locatif. En termes de production, cette dentielle dans un proche avenir. Comme tout la Loi nationale sur !'habitation de grande difference de forme n'est qu'ap on loge maintenant des petits bourgeois, 1938 n'ont aucun succes au Quebec. parente. En effet, la majeure partie des ceux-ci ont des exigences ... meme s'ils Toutefois, avec la Ires forte et rapide composants et des processus de mise n'en ont pas toujours les moyens. Du croissance industrielle consecutive a en oeuvre de l}mifamiliale et du «walk modele minimal, standardise, produit en l'entree en guerre du Canada, la ques up» sont identiqi.Jes. Et avantage supreme, serie, ii faudra en arriver au chalet tion du logement, en particulier le coot et la production de ces unites de base est suisse, aux deux salles de bain, a la la disponibilite des logements pour les accessible a des entreprises et a des maison individualisee, singularisee ... travailleurs des industries de guerre, con- capitaux de toute envergure, des plus PLAN CANADA, 29:3/MAY/MAI 1989 47 REFEREED ARTICLE/ ARTICLE SOU MIS A DES ARBITRES petits aux plus importants, pour lesquels ii suffit de multiplier le nombre d'unites incluses dans un meme chantier. A Montreal, Cite-jardin du tricentenaire a constitue le tout premier champ d'ex perimentation pour le gouvernement fe deral dans le domaine de !'habitation unifamiliale et plusieurs des enjeux men tionnes precedemment emergent dans le cadre de sa realisation. Alors que les membres de Cite-jardin du tricentenaire optent pour des petits chantiers succes sifs, pour des raisons de financement et d'organisation interne, et tendent a sin gulariser leur habitat, a faire du sur me sure,37 !'Administration nationale du loge ment exige sans cesse des chantiers de cent maisons minimum, une limitation a deux ou trois modeles types seulement, des amenagements interieurs et des fini tions standardises, des couts uniformes et moins eleves. .oi. Vue d 'un chant'ier type de Citejardin du tricentenaire. On remarquera la constructwn en Une autre implication de la production blocs de beton de taus l£s murs e.'tterieurs. en serie reside dans la necessite, primor diale, de trouver rapidement un acheteur Pour le gouvernement federal et la regroupant ainsi toutes les activites de solvable pour chaque maison produite, Sun Life, ii s'agit d'experimenter des me contr6Ie et d'initiative, tant au niveau de ce qui va tout a fait a l'encontre des canismes d'intervention dans le finance la production que du financement du priorites d'un groupement comme Cite ment residentiel, qui se concretiseront logement. jardin du tricentenaire, qui pretend a une avec la mise sur pied, en 1945, de Hous Tout au long des annees quarante, demarche collective, au choix attentif ing Entreprises Ltd., regroupement des !'initiative en matiere de logement est des membres en fonction de leur profil, plus grandes compagnies d'assurance bien dans le camp du gouvernement de leurs objectifs et de leur implication, vie canadiennes. Cet organisme aura federal, qui voit la un des lieux importants selon un critere premier d'homogeneite. pour vocation d'initier des grands projets de developpement d'un nouveau mare he La production en serie cree done un d'ensembles locatifs par le biais de la Loi pro pre a la relance economique, a pres y decalage a deux niveaux. Alors qu'elle nationale sur !'habitation. Ces memes avoir decele un element essentiel du implique un produit le plus homogene objectifs seront repris a grande echelle cout de la vie et des conditions de vie possible destine cependant a des ache avec les «dividendes limites», a compter des travailleurs. teurs aussi diversifies que possible, la de 1947. demarche de Cite-jardin du tricentenaire De l'echec partiel de Housing Entre De la cite ideale a la maison implique au contraire des membres aussi prises Ltd., le gouvernement federal ap de banlieue familiale homogenes que possible, mais qui de prendra a faire alterner ses interventions Si l'on compare Cite-jardin du tricente fait desirent des produits aussi diversifies en matiere de financement, entre les naire a ses modeles, l'entreprise de Gos que possible. mesures incitatives (notamment les prets selin et Richard est peut-etre celle qui Un autre enjeu important lie a !'inter garantis) et son implication propre (les presente le plus grand ecart entre l'ener vention federale a cette epoque est la prets directs), assurant un marche des gie deployee, !'agitation soulevee et le disponibilite des capitaux pour le secteur capitaux suffisamment important dans resultat obtenu. Periode de guerre, man residentiel. Grand consommateur de le secteur residentiel pour lever !'obstacle que de support de grands capitalistes fonds, le developpement rapide du que constitue le manque de fonds hypo philanthropes, absence de releve de marche du logement passe par la mobili thecaires a certaines periodes. l'Etat, inexistence d'un corps profession sation des institutions financieres les La mise sur pied, en 1945, de la Societe nel constitue appuyant les theses mises plus importantes, ou du moins de celles centrale d'hypotheques et de logement de l'avant, faiblesse de la pression popu qui regroupent les sommes d'argent dis marque la ferme volonte du gouverne laire ... autant de facteurs qui peuvent ponibles pour ce genre d'investissement. ment federal d'une intervention centra expliquer en grande partie les limites du A Montreal, des 1941 , le gouvernement lisee. La Societe centrale fusionne !'Ad mouvement des cites-jardins au Quebec, federal intervient de fagon resolue au pres ministration nationale du logement et la comme mouvement collectif, planifie. de la Sun Life pour qu'elle prete aux Wartime Housing Ltd., puis herite des Mais d'un autre point de vue, Cite-jardin membres de Cite-jardin du tricentenaire. realisations de Housing Entreprises Ltd., du tricentenaire, comme Radburn et 48 PLAN CANADA, 29:3/MAY /MAI 1989 REFEREED ARTICLE/ ARTICLE SOU MIS A. DES ARBITRES Cite-jardins du Plessis-Robinson, plutot dans J.-P. Collin, Histoire de /'urbanisation de 17. Homogeneite sociale, culturelle, raciale que d'etre jugees en regard des idees de la paroisse de Montreal, INRS-Urbanisation, ... Radburn compte plus de 80% de residants Howard et des realisations de Welwyn 1984, mimeo. adultes ayant une diplomation collegiale. Juifs Garden City, peuvent etre analysees 3. F. Choay, L 'urbanisme. Utopies et realites. et noirs en sont absents. II s'agit pour la Une antho/ogie, Editions du Seuil, 1965, 448 p. majeure partie de menages dans la trentaine, comme autant de lieux d'innovations 4. Walter L. Creese, The Search for Environ avec de tres jeunes enfants. 28% de la popu techniques, administratives et financi ment: The Garden City Before and After, Yale lation totale de Radburn est composee d'en eres, qui serviront a la formation d'ex University Press, 1966, 360 p. fants de 1 a 5 ans. perts, a la mise en place de structures 5. E. Howard, Tomorrow. A Peaceful Path to 18. Acte de vente #510311 devant Malcolm etatiques, au developpement de nou Real Reform, 1898, reedite en 1902 sous son Maclennan, notaire a Montreal, enregistre le veaux champs d'investissement ... et titre plus connu de Garden-Cities of Tomor 21 octobre 1941. Une partie des terrains ouvriront la voie aux «succes" des lo row. consideres pour la realisation de !'ensemble tissements de banlieues nord-ameri 6. Unwyn preconisait 15 maisons a l'acre. de la cite-jardin etait egalement mise sous caines et aux grands ensembles peri Pour une etude approfondie, voir W.L. Creese option. Taus ces terrains provenaient de la pheriques europeens. (ed.), The Legacy of Raymond Unwin. A succession William Kydd. Human Pattern for Planning, MIT Press, 1967. 19. Gitterman deviendra d'ailleurs responsa Est-ce qu'au-dela de toutes les cri 7. Sur Welwyn Garden City, lire plus particu ble du Planning Department de !'Administra tiques, justifiees, que l'on peut adresser lierement F.J. Osborne, Green Belt Cities. tion nationale du logement, en 1942, et com aujourd'hui au developpement des ban The British Contribution, Faber and Faber pletera un «Town Planning Manual, N.H.A., lieues des annees 1950 aux annees Ltd., 1946, 191 p., et Jeanne M. Wolfe, A Ottawa, ao0t 1942, n.p. Ce manuscrit en 2 1970, ii ne taut pas voir et reconnaitre de Survey of the New Towns of the London volumes ne fut jamais publie. nombreux succes, dont la voie a ete Area, memoire de maitrise, Universite McGill, 20. Gosselin participe aux reunions de la ouverte grace aux experiences comme departement de geographie, avril 1961, 121 p. mise sur pied de la National House Builders celle de Cite-jardin du tricentenaire? 8. Pour le developpement de Welwyn Garden Association, tandis que le pere Richard siege L'accession elargie, y compris des me City apres 1948, lire Welwyn Garden City sur le National Committee for Reconstruction. nages ouvriers, a des logements de qua Development Corporation, Welwyn Garden 21. Les dates de premiere inscription au role City New Town, janvier 1957, 24 p. d'evaluation varient entre 1944 et 1946. lite nettement amelioree n'est pas des 9. Pour une etude detaillee de Plessis-Robin 22. Lettre de l'Archeveche adressee a 20 moindres, si l'on se souvient des condi son et des autres cites-jardins de la region communautes religieuses, le 20 mai 1944. tions de logement qui prevalaient pour la parisienne, voir le numero special, Les Cites Celles-ci preteront 200 000,00$ a l'Union grande majorite, jusque dans les annees jardins de la region de l'ile de France, Cahiers economique d'habitations. 1950. de /'AIUR/F, vol. 51, mai 1978 et Ginette Baty 23. La commission Garneau (du nom de Me Et tandis que la nouvelle petit bour Tornikian, Un projet urbain ideal typique. Ag Antonio Garneau qui la preside), qui amenera geoisie montrealaise issue de la Revolu glomeration parisienne 1919 - 1939, IERAU en 1944 la creation du Departement du bien tion tranquille s'invente un nouveau mode CORDA, n.d., 134 p. etre social, la Loi de la protection de l'enfance d'habiter urbain, alliant sous de nouvelles 1 0. Egalement appelee Loi Cornudet. ... , en est l'exemple le plus flagrant. formes individualisme et entreprise col 11. La figure dominante de l'entre deux 24. Lepere Levesque est directeur de l'Ecole guerres sera sans conteste le depute, maire, des sciences sociales de l'Universite Laval. II lective, propriete et immeuble a loge ministre, senateur Henri Sellier. Voir ace sujet est le fondateur, en 1939, puis le president ments multiples, bref decouvre la copro les nombreux travaux consacres a ses oeu jusqu'en 1945, du Conseil superieur de la priete, les montrealais de toutes condi vres, plus particulierement Katherine Burien, cooperation. Pour une excellent etude de tions sociales de la peripherie sont de ed. La banlieue oasis, Henri Se/lier et !es ces questions, voir J. Hamelin et N. Gagnon, venus majoritairement proprietaires, dans cites-jardins, 1900 - 1940., Presses universi Histoire du catho/icisme quebecois, Boreal une proportion identique a leurs «ju taires de Vincennes, 1987, 302 p. Express, 1984, 2 vol. meaux" de Toronto, de New-York ou de 12. Vair !'excellent livre de Daniel Schaffer, 25. Le Parti communiste canadien, declare Paris.38 Garden Cities for America. The Radburn Ex illegal en juin 1940, avait fonde le Parti ouvrier perience, Temple University Press, 1982, progressiste en ao0t 1943. Fred Rose repre 276 p. sentait Montreal-Cartier a la suite de sa vic Notes: 13. Le nom d'origine de !'association etait toire lors de !'election partielle du 9 ao0t 1943. Cette recherche constitue un volet de «Trans Garden City and Regional Planning Associa Vair, Debats de la Chambre des communes, formation de l'espace urbain: rapports de tion of America. En 1925, !'Association est 8 George VI, 1944, vol. 1, 1er fevrier 1944, pouvoir et debat social sur les conditions de l'hote de !'International Town, City and Plan p. 100. vie a Montreal, 1940 a nos jours», recherche ning Conference a New-York a laquelle 26. Le 24 fevrier 1941, le gouvernement financee par FCAR, sous la direction de Howard, Parker et Unwyn participeront, a son federal cree le Wartime Housing Ltd. dont le Marc H. Choko, Jean-Pierre Collin et Annick invitation. mandat est de pallier aux lacunes du marche Germain. Pour une etude approfondie, voir 14. Preliminary Study of a Proposed Garden prive et de fournir des logements locatifs aux Marc H. Choko, Une cite-jardin a Montreal. Community in the New- York Region. travailleurs des usines de guerre. C'estJoseph La Cite-jardin du tricentenaire, Editions du 15. II s'agit en fait d'une formule proche de la M. Pigott, president de Pigott Construction Meridien, 1 989. copropriete. Ltd., une des plus importantes compagnies 1. Claude Picher, "Montreal ville de loca 16. Le revenu moyen a Sunnyside est de de construction au Canada, qui la dirige. taires," La Presse, 15 decembre 1988, 0.1 3 000,00 $. A cette epoque, les deux tiers 27. Dans les quartiers du centre-ville de 2. Voir les commentaires sur les banlieues des families urbaines americaines ont un Montreal, les appartements situes dans des cossues de Hampstead et Ville Mont-Royal revenu inferieur. immeubles locatifs (ceci exclut evidemment PLAN CANADA, 29:3/MAY/MAI 1989 49 REFEREED ARTICLE/ ARTICLE SOU MIS A DES ARBITRES les "plex") representent en 1941 de 40 a 60 men!, probleme moral et social," Ecole sociale declare-I-ii, «L'UEH est une oeuvre et non pourcent de tous les logements disponibles. populaire, no. 380, septembre 1985, p. 3. une entreprise commerciale ou industrielle». Sur ce sujet, voir Marc H. Choko et Richard 31. U.E.H., Cinq ans au service de /'habita Minutes de la reunion UEH, CJQ, Comite de Harris, L 'evolution du mode d'occupalion des tion fami/iale, p. 1 (texte fort probablement surveillance et communautes religieuses, du /ogements aMontreal et a Toronto, du milieu ecrit par Gosselin en 1945). 12 janvier 1 946. du x1xe siecle a nos jours, Eludes et docu 32. U.E.H., Bulletin d'informalion, fevrier 1945, 37. Le premier chantier de 16 maisons ments, INRS-Urbanisation, 1989. p. 2. compte pas moins de sept modeles differents. 28. Loi concernant /'Union economique 33. U.E.H., Bulletin d'information, avril 1945. 38. Si l'on exclut la ville meme, la region d'habitations et /es Cites-jardins du Quebec 34. J.A. Gosselin, Notes sur /'association, metropolitaine de recensement de Montreal Inc., II George VI, 1947, chapitre 134, 1 er mai juin 1941. comptait 57,4% de proprietaires occupants 1947. 35. Union economique d'habitations, Tract, en 1 986, celle de Toronto 55,6% et celle de 29. C'est d'ailleurs le titre du journal que mars-avril 1 942. Paris 43,0% (1984 ). publie l'Union economique d'habitations. 36. Ainsi, Gosselin, defendant la poursuite 30. Pere Jean-d'Auteuil Richard, "Le loge- du projet malgre son echec economique, 50 PLAN CANADA, 29:3/MAY/MAI 1989 Goldberg, Michael A. and Mercer, John (eds.) The Myth of the North American City. Vancouver, B.C.: University of British Columbia Press, 1986. Henderson, J. Vernon, Urban Development: Theory, Fact and Illu sion. New York, NY: Oxford University Press, 1988. Jagannathan, N. Vijay. Informal Markets in Developing Countries. New York, NY: Oxford University Press, 1987. Little, Jo., Peake, Linda and Richardson, Pat. (eds.) Women In Cities: Gender & The Urban Environment. Washington Square, New York, NY: New York University Press, 1988. Matus, Vladmir. Design for Northern Climates: Cold-Climate Plan ning and Environmental Design. New York, NY: Van Nostrand Book Reviews/ Comptes rendus de livres Reinhold Company Inc., 1988. Nelson, Arthur (ed.) Development Impact Fees. Chicago, Ill., Wash ington, D.C.: Planner's Press, 1988. Publications Received/Publications r~ues Orosz, Eva. (ed.) Spatial Organization and Regional Development: May 5, 1989/5°me mai 1989 Papers of the 6th Polish-Hungarian Geographical Seminar. Pees, Andrew, Caroline and Milroy, Beth Moore (eds.) Life Spaces: Gender, Hun.: Centre for Regional Studies, Hungarian Academy of Sci Household, Employment. Vancouver, B.C.: University of British ences, 1988. Columbia Press, 1988. Roth, Gabriel. The Private Provision of Public Services in Developing Brealey, T.B., Neil, C.C. and Newton, P.W. (eds.) Resource Communi Countries. New York, NY: World Bank, Oxford University Press, ties: Settlement and Work Force issues. Australia: CSIRO, 1988. 1987. Bryson, John M. and Einsweiler, Robert C. (eds.) Strategic Planning: Solnit, Albert. The Job of the Practicing Planner. Chicago, Ill.: Plan Threats and Opportunities for Planners. Chicago, Ill., Washington, ners Press, American Planning Association, 1988. D.C.: Planner's Press, 1988. Stelter, Gilbert A. and Artibise, Alan F.J. (eds.) Power and Place: Conner, Desmond M. Constructive Citizen Participation: A Resource Canadian Urban Development in the North American Context. Book. Victoria, B.C.: Development Press, 1988. Vancouver, B.C.: University of British Columbia Press, 1986. Dandekar, Hemalata C. (ed.) The Planner's Use of Information. Toye, John. Dilemmas of Development. Oxford, UK: Basil Blackwell, Chicago, Ill., Washington, D.C.: Planner's Press, 1988. 1987. Dykeman, Floyd W. (ed.) Integrated Rural Planning and Develop World Bank. World Development Report 1988. New York, NY: ment. Sackville, N.B.: Mount Allison University, Rural and Small Oxford University Press, 1988. Town Research and Studies Program, 1988. Fram, Mark. We// Preserved: The Ontario Heritage Foundation's Manual of Principles and Practice for Architectural Conservation. Erin, Ont.: The Boston Mills Press, 1988. PLAN CANADA, 29:3/MAY/MAI 1989 51 Our liaison with other professions is further maintained through our participation in the Design Council, under which the Premier's Awards of Excellence for outstanding achieve ment in design are awarded. Other organizations participating in the Council are the SAA, SALA, the Association of Profes sional Engineers of Saskatchewan and the Interior Designers of Saskatchewan (IDS). Forum on Form, a lecture series on designing our environment, is jointly sponsored by APCPS, SAA, SALA and IDS. We hope that these joint efforts with our fellow professionals will continue to provide opportunities for discussion and communication over common concerns and issues. Affiliate Comer/ Nouvelles des Next year will hopefully see the finalization of the Strategy Plan, redrafting of the Association bylaw, amendments to our assooiations provinciales Professions Act and improved links with associated profes sions and the Provincial government. NEWS RANDY BRAATEN Report from the Association of Professional Newsletter Editor Community Planners of Saskatchewan 1988 - 1989 Year In Review The Association of Professional Community Planners of Sas NEWSLETTERS katchewan had an active year in 1988-89. As I write this, Council is looking forward to the May AGM in Swift Current to Ontario Planning Journal/Ontario Professional review the activities with the membership. Planners Institute As with many affiliates and CIP, APCPS is preparing a March/April 1989 Strategic Action Plan to provide direction and guidance for the EDITORIAL Association. A final draft of the Plan will be submitted to the O.P.P.I. Salutes Centenary of O.A.A. AGM for discussion. "The Ontario Association of Architects is celebrating its Cen As part of the Strategy Plan, a comprehensive review of the tenary this year." "In a young country like Canada, 100 years is a Association's bylaw, the Community Planning Professions long time. And any professional organization capable of surviv Act, and of day to day operations was carried out. Several ing the transition from quill pen and vellum to the high tech areas were noted that need correction, improvement or world of computer aided design deserves our admiration and updating. applause." APCPS reviewed the application of the Rural and Urban GLEN MILLER Development Program (Planning Option), University of Sas katchewan for accreditation as a recognized planning degree. ARTICLE Accreditation had been removed after an in-depth review of Negotiated Plan Making and Design ... The Importance the program in 1985 revealed a number of shortcomings. The of Being Uncertain new application indicated that the major deficiencies had "With good reason the public increasingly views the master plan been addressed, and that the University was committed to as a regulatory tool to control rather than stimulate community further improvements. Based on this, Council ratified the pro development. Typically this plan fails to accurately represent a gram for the 1989-1990 academic year. community's views, aspirations and priorities." Improved communication with the senior government de LARRY SHERMAN partments responsible for the Planning legislation was sought as a result of proposed changes to the Planning and Develop ment Act which were not circulated outside government. Scenario/Association of Professional Community Council met with the Deputy Ministers of Urban Affairs and of Planners of Saskatchewan Rural Development. The Deputy Ministers responded positive April 1989 ly to the proposal of a standing committee to continue liaison ARTICLE between the departments and APCPS. Council expects to Report From Jamaica have the terms and operational mandate for this committee "The relevancy of planning with due considerations for storm ready for discussion at the AGM. damage and natural hazards is a strong component of commu nity planning in the Caribbean, and nature has a certain way of making sure nobody forgets about this." LAURENT MOUGEOT 52 PLAN CANADA, 29:3/MAY/MAI 1989 PIBC News/Planning Institute of British Columbia colloque sur l'urbanisme organise par la CPUQ dans le cadre January/February 1989 de la celebration de son vingt-cinquieme anniversaire. ARTICLE Les Etats generaux de l'amenagement Focus on Ray Spaxman "Ray stated that it is important for planners to care for others au Canada who they may not like." "Planners must also have an idealism for La Faculte de l'amenagement de l'Universite de Montreal, the community as a whole ... and to represent the public good constituee des ecoles d'architecture, d'architecture de pay for whoever the clients are." sage, de design industriel et de l'lnstitut d'urbanisme, a ete SANDY JAMES l'hote, du 13 au 15 octobre dernier, d'un congres celebrant le vingtieme anniversaire de sa fondation. Quelque cinq cents praticiens, chercheurs, professeurs et etudiants y ont parti cipe. Le colloque voulait proposer une reflexion sur !'evolution Publication Announcement des disciplines de l'amenagement et sur leurs tendances - CAP Newsletter/ d'avenir. Des conferences sur !'architecture, !'architecture de Avis de Parution - bulletin de paysage, le design industriel et l'urbanisme ont ete consa !'Association des urbanistes crees a ces questions. Toutefois, la grande majorite des du Commonwealth activites se sont articulees autour de problematiques "trans NEWSLITJ'ER OF THE COMMONWEALTH disciplinaires." Sept themes ont ete explores: ASSOCIATION amenagement et conservation OF PLANNERS • • amenagement et informatique CAP Newsletter is published for the Canadian Insti • amenagement, Tiers-Monde et Nord canadien tute of Planners, on behalf of the Commonwealth • amenagement et creativite Association of Planners, by the Institute of Urban • amenagement et consultation/mediation Studies (University of Winnipeg). Annual subscrip • amenagement et sciences sociales tion $20 ($25 for institutions and libraries). TRI ACOM • amenagement, formation professionnelle et enseignement is the official agent for subscriptions and advertising. universitaire. For submission of articles for publication contact the Les conferenciers venaient principalement du milieu que Institute of Urban Studies. becois mais aussi de tous les coins du pays. Le colloque a egalement fourni !'occasion de presenter une exposition des Le bulletin de !'Association des urbanistes du Com travaux des etudiants, exposition qui a occupe pendant toute monwealth est publie pour l'ICU et l'AUC par l'lnstitut la semaine la place du complexe Desjardins. C'est sur cette des etudes urbaines de l'Universite de Winnipeg. place que s'est effectue le lancement du premier numero de Veuillez soumettre vos articles pour publication direc Trames, la revue de l'amenagement, publiee a la Faculte de tement a l'universite. L'abonnement est de 20$ (25$ l'amenagement. pour les bibliotheques). Enfin, le congres a accueilli le colloque «Urbanisme et For more information on advertising and subscriptions, patrimoine,» organise conjointement par l'lnstitut d'urbanisme contact/Pour toute information concernant la vente de de la Faculte de l'amenagement et le Centre Jacques-Cartier, publicite et les abonnements, contactez/: region Rhone-Alpes, France. Les ateliers, qui ont reuni des TRIACOM INC. professeurs et urbanistes quebecois et fran9ais, portaient sur 158 boul. Provencher les themes suivants: St. Boniface, Manitoba • la recherche du patrimoine Canada R2H OG3 • politique d'intervention Tel: (204) 231-0588 D enjeux, strategies et repercussions des interventions sur le Fax: (204) 233-5790 patrimoine • patrimoine industriel et residentiel • patrimoine nature!. MARIE LESSARD Notes/ Notes ANNOUNCEMENTS/INFORMATION Demographie, economie et environnement Au mois d'octobre dernier, avaient lieu au Quebec deux La pratique dolt y faire face. colloques importants dans le champ de l'urbanisme et de Dans le cadre des activites soulignant le 25ieme anniversaire l'amenagement: le congres du vingtieme anniversaire de la de fondation de la Corporation professionnelle des urbanistes Faculte de l'amenagement de l'Universite de Montreal et un du Quebec, se tenait, le 7 octobre dernier, a Quebec, un PLAN CANADA, 29:3/MAY/MAI 1989 53 colloque ayant pour theme "L'urbanisme: lieu de convergence Penser environnement des preoccupations economiques, sociales et environne L'urbaniste a un urgent besoin de se recycler, selon Louise mentales." Cent vingt personnes y participerent, qui furent en Roy, experte-conseil en environnement, et Gerard Divay, mesure d'apprecier la lecture que des specialistes ont faite sous-ministre adjoint au Ministere de l'environnement. Cette des forces majeures qui influenceront leur pratique dans le preoccupation est devenue l'une des pieces maitresses des futur. politiques des gouvernements en raison de sa popularite G{,rer la decroissance aupres des citoyens et pourrait obliger l'urbaniste d'aujour d'hui a sortir de ses tiroirs les approches d'antan pratiquees Selan Dominique Achour, professeur a la Faculte des sci lors du mouvement "city beautiful" du debut du siecle. L'ac ences de !'administration de l'universite Laval et auteur de cent sera mis sur la protection des milieux naturels, la creation plusieurs ouvrages sur l'urbanisme et l'investissement im de forets urbaines, la recuperation des rives et des berges, mobilier, la societe quebecoise connait, pour la premiere fois l'amenagement de terrains respectant le caractere naturel. de son histoire, une decroissance demographique. II estime Ce mode de pensee, selon eux, avantage taus les groupes qu'il faudrait 60 000 nouveaux immigrants chaque annee sur composant la societe et assure une longue vie a la planete. une periode de trente ans pour redresser la courbe demo graphique. PIERRE BARIL, CPUQ Achour estime que la pratique de l'urbanisme evoluera en fonction notamment des attitudes de la societe quebecoise face a !'immigration. Pas d'immigration, mains de richesse, diminution de la croissance des villes et vieillissement de la population. Les urbanistes doivent se preoccuper de cette Pointed Corner/ Opinions question et influencer les gestes des gouvernements s'ils veulent maintenir leur pratique actuelle. Si votreimagination professionnelle a ete piquee vif S'lnteresser aux reg/es du marche a recemment mais que vous n'avez pas suffisamment Michel Lachance de l'Office municipal de developpement de materiel pour publier, vous serez peut-etre i.nte economique de Quebec, Bruno Begin de la Chambre de resse(e) afaire paranre un article dans notre rubrique. commerce et Michele Jodoin, urbaniste a la ville de Montreal, Un espace sera mis g.racieusement avotre disposi considerent que l'urbaniste doit tenir compte des regles du tion dans chacune de nos parutions afin que vous marche s'il veut etre pris au serieux par les promoteurs. Les pulssiez exprimer certaines de vos brillantes re methodes d'evaluation de projets, les criteres de performance flexions, reflexions qui ne seront ni trap 'academiques' en matiere de zonage sont des approches qui font defaut aux pour etre soumises a !'evaluation d'arbitres, ni trap urbanistes. Si ceux-ci utilisaient les outils de l'economiste, ils 'specialisees: Par la meme occasion, tout commen seraient mieux armes devant les arguments des promoteurs talre formula a l'egard de ces articles sera egalement et pourraient mieux faire valoir l'interet du public. le bienvenu. Revoir noire conception du logement Veuillez expedier vos textes a: La diminution de la taille des menages, le vieillissement gene MARIE LESSARD ralise de la population exercent, selon Georges Robert de Go-redactrice la Societe d'Habitation du Quebec, des pressions sur !'en Plan Ca:n:ada Faeulte d'urbanisme semble de !'organisation des activites dans l'espace. II faut, Insmtut d'urbanisme selon ce dernier, voir la population sous un nouvel angle, plus Universi!A de Mcmtreal nuance, plus raffine. Jim Bak Pyun de la Ville de Montreal a C.P. 6128, SuccursaleA souligne que Montreal allait dans cette direction dans le cas Mcmtreal, Quebec H3C 3J7 du projet "Overdale" ou le promoteur offre des logements dont le layer respecte la capacite de payer des locataires evinces par le projet. Bien que l'aspect social perde du terrain chez les urbanistes, ii existe des besoins a combler et de nouvelles approches a l'egard du logement restent a de velopper. 54 PLAN CANADA, 29:3/MAY/MAI 1989 Canadian Institute Plan strategi(JlJe de of Planners l'lnstitnt uanadien Strategic Plan des urlJanistes GARY DAVIDSON, MCIP This article overviews the continuing evolution of a stra Cet article presente un aper~u du processus de planifi tegic planning process for the Canadian Institute of cation strategique de l'lnstitut canadien des urbanistes. Planners. The Strategic Plan has been prepared by Gary Le plan strategique a ete prepare par Gary Davidson, de la Davidson at the direction of National Council. To date, national direction du Conseil national, auteur de cette article. Le Con council and the affiliates have reviewed the strategic plan and seil national et les associations affiliees l'ont passe en revue et the membership has been asked to comment. The Strategic ont demande aux membres de faire part de leurs commen Plan is a continually evolving process and this article provides taires. Le plan strategique est un processus en evolution a summary of both the background and the strategic plan. As constante; c'est pourquoi cet article porte sur le contexte en such, it is general in nature and deals with the proposed plus du plan strategique lui-meme. II s'agit d'un document direction of CIP, not the details of implementation. general qui traite de !'orientation que l'ICU se propose de suivre, sans entrer dans les details de la mise en oeuvre du Background plan. Central to the formulation of any strategic plan for any organi zation is the development of a "mission statement" and an Le contexte understanding of the organization's "corporate culture" - Dans tout organisme, la formulation d'un plan strategique where CIP wants to go in the future and how it operates in the repose en premier lieu sur !'elaboration d'un "enonce de present. In a diverse organization such as CIP, an under mission" et sur la comprehension de ce qui fait la "culture" de standing of a mission or purpose is far more important than l'organisme. Ainsi, l'ICU doit savoir quelle direction ii compte detalied "plans." Such plans will be developed and imple prendre a l'avenir et comment ii fonctionne dans le present. mented by the various parts of the organization in an inde Pour tel un organisme, ii est beaucoup plus important de se pendent environment, not a hierarchical one. Consensus on donner une mission ou un but que de preparer des "plans" the direction, not detail, is critical. To a large extent, the details detailles. De tels plans seront plut6t elabores et mis en oeuvre flow autonomously from the direction. CIP's mission must par les diverses composantes, independamment les unes focus on the changing dynamic environment of planning and, des autres, alors que l'ICU doit formuler la direction a suivre et over time, create a culture that is characterized by a pro non les details. Ceux-ci devraient decouler de !'orientation active nature. adoptee. La mission de l'ICU doit tenir compte de !'evolution The strategic plan considers the environmental factors rapide du monde de l'urbanisme et, avec les annees, engen affecting CIP; the organization's culture and mission; the stra drer une culture "pro-active." tegic initiatives and actions that CIP should pursue; and a Le plan strategique tient compte des facteurs environne system of monitoring. At this juncture the strategic plan should mentaux qui touchent l'ICU, de la culture et de la mission de be considered as a draft. l'organisme, des initiatives et des actions strategiques a entre The environment that CIP operates within is grouped into prendre et de la necessite de prevoir un systeme de contr6Ie. five turbulent sectors, all of which must be considered. These Pour !'instant, le plan strategique n'en est qu'a l'etat d'ebauche. are: L'environnement dans lequel fonctionne l'ICU se compose 1. an acceleration in the complexity of issues; de cinq secteurs en pleine mutation, qui doivent tous etre pris 2. a need for quality decisions regarding the future of Cana en consideration: dian communities; 1. des problemes de plus en plus complexes; 3. a demand for the incorporation of ethical considerations in 2. la necessite de prendre de bonnes decisions concernant community and environmental decisions by the public; l'avenir des communautes canadiennes; 4. the rapid alteration in the "practice of planning" leading 3. les exigences d'ordre ethique imposees par le public en ce "planners" to expand the scope of their profession; and, qui a trait a la vie communautaire et a l'environnement; 5. the necessity to operate national organizations in both 4. !'evolution rapide de la "pratique de l'urbanisme" qui oblige official languages. les urbanistes a etendre leur domaine de competence; PLAN CANADA. 29:3/MAY/MAI 1989 55 This turbulence has resulted in a growing diversity in the 5. !'obligation qu'ont les organismes nationaux de fonctionner types of planners required by society and educated by universi dans les deux langues officielles. ties. This changing situation has not been reflected historically Cette instabilite a entraine la multiplication des types d'ur in "planners' organizations" and many "planners" choose to banistes dont la societe a besoin et qui sont formes par les remain outside traditional planning organizations, such as universites. Mais ce phenomene ne semble pas affecter CIP. In addition, there has been a rift between "planners' organi !'evolution suivie par les organismes traditionnels dans les zations" and the universities which educate planners. At the quels travail lent les urbanistes et plusieurs diplomes ne s'inte crux of this situation is Cl P's ability to keep abreast of planning grent pas aux organismes professionnels classiques com me reality and to define the directions in which planning is moving. l'ICU. En outre, ii s'est cree un fosse entre ces derniers et The challenge for CIP is to be the planning organization that les universites qui torment les urbanistes. A cet egard, !'apti the public, the media and planners look to for directions with tude de l'ICU a se tenir au fait de la realite et a definir la respect to planning issues throughout Canada. direction dans laquelle la profession evolue constitue un The Canadian Institute of Planners has wrestled with this enjeu de taille. Le public, les medias et les urbanistes devraient challenge. In the early 1970s, CIP began a long organizational considerer l'ICU comme la principale ressource pour tout ce restructuring that culminated in 1984 with a major redefinition qui concerne l'urbanisme a !ravers le Canada. of objectives. Specifically, CIP adopted the following goal: L'lnstitut canadien des urbanistes deploie d'enormes efforts To support an identifiable national association with more pour relever ce defi. Au debut des annees 1970, ii a entame decentralization of responsibilities and resources to the un long processus de reorganisation qui s'est acheve, en Affiliates. This will result in the Affiliates becoming the 1984, par une importante revision des objectifs. L'lnstitut s'est primary focus of achieving the objectives of CIP. alors donne le but suivant: In conjunction with this goal CIP redefined objectives cover Constituer une association nationa/e identifiable et decen ing seven major areas: membership, politics, communica traliser davantage !es responsabilites et /es ressources aux tions, public image, research, program delivery and financial associations affiliees. Ainsi, /es objectifs de /'ICU porteront stability. ils principa/ement sur ces dernieres. While this reorganization by CIP did not address the turbu Parallelement ace but, l'ICU a redefini ses objectifs concer lent planning environment or the need to restructure its con nant sept grands domaines: Adhesions, politique, communi cept of the nature of planning practice, it did offer an cations, image aupres du public, recherche, mise en oeuvre organizational channel and an impetus to move away from des programmes et stabilite financiere. administrative issues toward "action." It is this continually Cette reorganisation n'avait pas pour objet de resoudre les changing nature of planning that is critical in understanding problemes poses par l'environnement instable dans lequel the environment within which CIP now exists and must exercent les urbanistes ni de revoir l'idee que l'lnstitut se fail operate. de la profession dans la pratique. Elle a par contre permis a l'lnstitut de se donner la structure et la force necessaires pour Strategic Plan s'eloigner des questions administratives au profit de l"'action." The strategic plan starts with the organization's "culture" C'est de cette evolution constante de la profession que de because that is what exists and controls the ability to achieve pend avant tout la fac;:on dont est compris l'environnement any desired goal or mission. CIP's culture tends to be a dans lequel l'ICU se trouve et doit fonctionner actuellement. reflection of a dynamic tension between looking inward to its own organizational needs and outward toward the uncertain Le plan strategique directions of planning. In this respect CIP has both an organi Le plan strategique traite d'abord de la "culture d'entreprise," zational (bureaucratic) culture and an operational (planning) parce que c'est d'elle que depend !'aptitude a atteindre un but culture. The problem is that when they clash the organizational ou a accomplir une mission. L'organisation (ou la "culture") de culture dominates. It has often been the case that CIP retreats l'ICU temoigne d'une tension dynamique entre ses propres from external uncertainty by revising its own organization. At besoins en termes d'organisation et le contexte plein d'incerti times this internal view has dominated the organization and tude dans lequel se pratique la profession. II en resulte deux restricted its ability to act for the profession. The operation of a cultures: organisationnelle et operationnelle. Lorsque ces successful professional organization lies in its ability to main deux aspects se heurtent, c'est la culture bureaucratique qui tain the appropriate internal capability to respond and lead l'emporte. II est souvent arrive que l'ICU ignore !'incertitude externally. At this juncture, Cl Pis dominated by its operational exterieure et se replie sur sa propre organisation. Cette atti mode and is venturing on an outward looking, pro-active tude l'a amene a limiter son aptitude a defendre la profession. approach. Several recent successes have fortified this ap Actuellement, l'ICU se trouve en phase operationnelle et ii est proach. ouvert vers l'exterieur, selon une perspective "pro-active." However, similar situations have been present in the past Plusieurs succes recents l'ont encourage a continuer dans and CIP has retreated into bureaucratic concerns in the face cette voie. of change. It will take several years of sustained education Pourtant, l'ICU a connu des situations semblables dans le and effort at developing an outward looking approach and passe et, neanmoins, s'est alors refugie dans des attitudes 56 PLAN CANADA, 29:3/MAY/MAI 1989 associated supporting successes to alter CIP's existing cul bureaucratiques, tournant le dos au changement. Pour modi ture, which is predominantly bureaucratic and organizational. fier la culture bureaucratique et organisationnelle de l'ICU, ii This change of culture toward CIP viewing itself as a leader faudra non seulement plusieurs annees de formation et d'ef in defining the standards of Canadian planning practice forts soutenus dans le sens d'une ouverture vers l'exterieur, through its own actions should be CIP's mission and a sup mais aussi que ces efforts portent fruit. L'ICU doit se donner porting culture needs to be developed. comme, mission ce changement de culture; c'est ce qui lui The strategic plan suggests that CIP adopt a mission fo permettra de jouer un role actif dans la definition de la pratique cused on leadership in the planning profession. The "clients" urbanistique au Canada; ii doit egalement se donner les are seen as the public, the profession and Cl P's own network moyens d'attendre ce but. of affiliate organizations. To achieve this mission and meet the Le plan strategique stipule que l'ICU doit adopter une needs of its clients, CIP has to develop both an external and mission axee sur son "leadership" aupres des urbanistes. Les internal focus. The external focus would be towards the public "clients" sont constitues du public, des professionnels et des and the profession. The internal focus would be towards its societes affiliees a l'lnstitut. Pour accomplir cette mission et members through their affiliates. Success in the external focus repondre aux besoins de ses clients, l'ICU doit axer ses will assist greatly those efforts at servicing the affiliates. At this activites a la fois vers l'interieur et vers l'exterieur. Du point de point in time the "profession" is considered as an external vue externe, ii s'agit d'etre ouvert sur le public et sur la focus. CIP cannot claim to represent the planning profession. profession. Du point de vue interne, les efforts doivent porter It should be Cl P's mission to strive for a recognized leadership sur les membres, par l'intermediaire des associations affiliees. role in planning across the breadth of the profession and S'il reussit aupres des membres, l'lnstitut pourra plus facile nation. ment satisfaire les besoins de celles-ci. Actuellement, la While a mission to develop a balanced external and internal "profession" est consideree comme un element externe et focus provides a concept it does not indicate what should be l'ICU ne peut pretendre representer les urbanistes.11 faudrait chosen as goals. Two mission statements are suggested. qu'il se donne comme objectif de jouer un role de "leader" reconnu par !'ensemble des urbanistes et dans le pays tout External Mission entier. Develop, in an ethically consistent manner, a leadership Un fois accepte le principe d'equilibre entres les activites role, for both the public and the profession, in formulating a externes et internes, ii taut encore definir les objectifs a pour consensus on future directions for planning in Canada's suivre. Nous proposons deux missions: une mission externe communities. et une mission interne. This would be the main mission. Cl P has been changing its focus and adopting a broader, more community development, Une mission externe orientation to planning and adjusting its operations accordingly. Tout en respectant !es reg/es d'ethique, accroitre son role de "leader" aupres du public et des professionnels en Internal Mission parvenant a un consensus quant au futur de l'urbanisme Deliver an effective variety of high quality and cost effective au Canada. services to members in both official languages. Ceci devra etre la mission principale. L'ICU a change The internal mission is supporting - both are required. CIP d'orientation pour adopter une conception plus large de l'ur has developed a capability to deliver member services banisme, davantage tournee vers le developpement commu through its affiliate organizations. CIP's role is to maintain nautaire. II devra adapter son mode de fonctionnement a national standards and equity. cette nouvelle realite. To undertake its mission CIP has access to three types of resources: Une mission interne 1. its voluntary member network which is activated mainly Assurer a ses membres des services diversifies, de through the affiliate structure; grande qualite et peu coOteux et ce, dans !es deux /angues 2. a small national office; and, officielles. 3. an expanding network developed through shared resources La mission interne remplit une fonction de soutien; l'une et (financial and human) with other agencies. l'autre sont necessaires. L'ICU est desormais en mesure de The two mission statements proposed for CIP can be fournir des services a ses membres par l'entremise des implemented through a limited number of "strategic initiatives." associations affiliees. Son role est de faire respecter les These initiatives group various present actions into a strategic normes nationales et les regles d'equite. plan. The activities can be considered as either externally or Pour accomplir sa mission, l'lnstitut a acces atrois types de internally focused, excepted for two activities which are both ressources: and are considered as "joint activities." 1. son reseau de membres benevoles, qui repose principale ment sur les associations affiliees; External Activities 2. un petit bureau national; Projects 3. un ensemble croissant de ressources financieres et hu Project work will be the centre of Cl P's activities. These will be maines, qu'il partage avec d'autres organismes. PLAN CANADA, 29:3/MAY/MAI 1989 57 achieved through members working at the affiliate level, na Les deux enonces de mission proposes par l'ICU peuvent tional office resources and projects conducted in association etre mis en oeuvre dans le cadre d'un nombre limite d"'initia with other agencies where Cl P can assume a leadership role. tives strategiques." Ces initiatives regroupent diverses activites en un plan strategique. On peut faire la distinction entre les Public Presence activites externes et internes, a !'exception de deux activites Much of CIP's public presence will be derived from project qui ont une portee a la fois interne et externe. work. CIP must not be timid in assuming credit for its role and the importance of the projects and their conclusions. Les activites externes Research Les projets CIP should become involved in research that furthers its leadership role. Where possible, CIP should attempt to man Les projets seront au centre des activites de !'ICU. Ce sont les age this research as opposed to carrying it out. The university membres qui !es realiseront. au niveau des associations affi community and individual members should be employed to liees, du bureau national et dans le cadre d'associations avec conduct research. CIP should endeavour to stress applied d'autres organismes aupres desquels !'ICU peut jouer un role de "leader." research with direct applicability to Canadian situations. Education La presence aupres du public The education of new planners is of critical concern to the La presence de l'ICU aupres du public tiendra en grande profession and CIP. By and large, new professional planners partie aux projets realises et a leurs resultats. are educated and trained by Canadian universities. Cl P should La recherche seek co-operative as opposed to regulative interaction with L'ICU doit participer a des activites de recherche qui le con these universities. Universities should be assisted in develop firment dans son role de "leader." II devrait plutot gerer ces ing and broadening their programs. recherches que les executer lui-meme et les projets devraient International Activities etre confies aux universites et aux chercheurs individuels. CIP represents Canadian planning and, as such, deals in a L'ICU doit mettre !'accent sur la recherche appliquee qui global context. CIP should always be active in the international porte sur le contexte canadien. planning community through membership in international La formation planning organizations and undertaking projects which are La formation des urbanistes constitue un sujet de preoccupa international in scope. tion de premiere importance pour l'urbanisme et pour !'ICU. Outreach to Related Professions Les nouveaux urbanistes sont en majorite formes dans les CIP should pursue a coalition-building role with respect to universites canadiennes. L'institut devra chercher a etablir those professions that are related to planning. The goal would des relations de collaboration avec ces universites plutot que be for CIP to act as an umbrella organization for allied profes de s'en tenir a un role de controle. II devra aider les universites sions with respect to their planning related activities. a elaborer et ouvrir leurs programmes. Les activites internationales Comme l'ICU represente !'ensemble des urbanistes cana Internal Activities diens, ii devra veiller a etre present sur la scene internationale Membership en faisant partie d'organismes internationaux d'urbanisme et Membership criteria are a central internal consideration as en entreprenant des projets d'envergure internationale. they define the practice that Cl P represents. Cl P should strive La liaison avec /es professions apparentees to keep its membership criteria open to changes in planning. L'ICU devra chercher a cooperer avec !es professions ap Afflllates parentees a l'urbanisme. II faudrait qu'il se donne pour role de Cl P's strength lies in its affiliates and their activities. Its struc chapeauter ces professions en ce qui concerne les activites ture is based on a co-operative partnership. Affiliates must qui touchent a l'urbanisme. have both the autonomy and resources to run programs and devise organizational responses that best suit the planners in their respective areas. Education Les activites internes In the context of internal actions, education refers to continu Les adhesions ing education for members and the promotion of professional Les criteres d'adhesion representent un element primordial enhancement. The actual programs will be delivered primarily des activites internes car ils regissent la pratique representee by the affiliates but CIP should support and encourage educa par l'ICU. Ce dernier devra s'efforcer d'adapter continuelle tion through its conferences and workshops. ment ses criteres d'adhesion a !'evolution de l'urbanisme. 58 PLAN CANADA, 29:3/MAY/MAI 1989 Member Programs Les associations aff/1/ees CIP has and will continue to develop a variety of member La force de l'ICU reside en ses associations affiliees et en programs. Many of these will be assumed by affiliates. Indeed leurs activites. Sa structure repose sur des relations de coo many programs may start at the affiliate level and be diffused peration avec ces dernieres. Les associations affiliees doivent through the national organization. The salient point is that posseder l'autonomie et les ressources necessaires pour these will be ever-changing. mettre en oeuvre des programmes et pour s'organiser de fa9on a repondre le mieux possible aux besoins des urba Council and National Office nistes dans leurs domaines respectifs. The CIP Council and the national office of CIP, along with the Affiliates, are the main tools for the implementation of the La formation lnstitute's objectives. These bodies should view themselves Vu du point de vue des activites internes, le terme formation more as managers of activites than as a resource to carry concerne la formation continue offerte aux membres et les them out. possibilites de perfectionnement professionnel. Les pro grammes eux-memes seront dispenses principalement par Financial Management les associations affiliees mais l'ICU devra soutenir et encou CIP should continue to employ a strategic budgeting approach rager les actions de formation par le biais de conferences et for operations and this should be backed up with financial d'ateliers. controls requiring surplus budgeting on an annual basis of a fixed amount and the development of a reserve balance equal Les programmes destines aux membres to a set portion of annual operating costs. External projects L'ICU met sur pied toutes sortes de programmes a !'intention should be financed using task budget accounting and cover des membres et ii continuera dans cette vole. Bon nombre de internal costs. ces programmes seront geres par les associations affiliees ou crees par les associations affiliees puis diffuses par le bureau national. Ce qu'il importe de noter, c'est que ces Joint Activities programmes ne cesseront d'evoluer. Conferences Le Conseil et le bureau national The national conference is an activity that can be employed Le Conseil et le bureau national de l'ICU sont, avec les for numerous goals. Over the last several years national associations affiliees, les principaux instruments de la mise en conferences have assumed a major function in support of the oeuvre des objectifs de l'lnstitut. lls s'occuperont davantage lnstitute's educational and public presence objectives. de la gestion des activites que de leur realisation. Affiliate conferences, and within affiliates area or district conferences, are quality events. These can be vehicles for La gestion flnanciere Cl P's initiatives and should be used to advance them and as Sur le plan de l'exploitation, l'ICU dolt conserver une politique part of the information - resource sharing network that is re de budgetisation strategique et employer, a cette fin, des me quired and must be maintained. canismes de controle financier qui lui permettent de tabler Publications regulierement sur un excedent budgetaire et de constituer une reserve egale a une proportion determinee des charges CIP's publication, Plan Canada, has developed a manage d'exploitation annuelles. Le budget des projets exterieurs ment life of its own. It is a major resource for the Institute and devra etre etabli par activite et englober les frais internes. should be employed to advance CIP's initiatives and goals. Strategic Initiatives Les activites bilaterales There are five strategic initiatives required to achieve CIP's Les co/toques mission: leadership, information, member services, public Le congres national constitue une activite qui peut servir presence and international affairs. These initiatives are toutes sortes d'objectifs. Ces dernieres annees, ii a largement formed by integrating various activities. While the present size contribue au developpement de l'lnstitut et l'a aide a s'imposer and resources of Cl P and the Affiliates place limitations on the aupres du public. number of initiatives, the real limitations lie not so much in the Les congres des associations affiliees et les colloques qui number of initiatives but in the ability to manage them. CIP and sont organises a travers le pays constituent aussi des evene Affiliate executives can effect a great deal of involvement and ments importants. 11s peuvent permettre a l'ICU de lancer et action through the volunteer networks of their members and de promouvoir certaines initiatives concernant les reseaux by the use of external resources. However, general areas of d'information qui sont si necessaires et qu'il faut a tout prix initiatives must be clearly enunciated and new areas of initia maintenir! tives should not be ventured upon without first examining their impact and congruence with the organization's mission and Les publications culture. Cl P's nemesis always will remain the ease with which Au fil des ans, la publication de l'ICU, Plan Canada, a fini par it can diffuse its efforts to the point of general irrelevance; not etre geree de fa9on autonome.11 s'agit d'une ressource impor- PLAN CANADA, 29:3/MAY/MAI 1989 59 by attempting too much but by undertaking initiatives that are tante pour l'lnstitut qui doit s'en servir pour promouvoir ses contradictory. initiatives et ses objectifs. The initiatives are summarized below using some examples Les initiatives strategiques of specific present activites: Les initiatives strategiques necessaires a l'accomplissement Leadership Initiatives de la mission de l'ICU se regroupent en cinq secteurs: "leadership," information, services aux membres, presence While many of the activities have the nature of leadership au pres du public et affaires internationales. Ces initiatives sont initiatives, this group of initiatives speaks to those which are constituees de diverses activites. Le nombre d'initiatives est felt to be critical to the fulfilment of this goal. The tendency to certes limite par la taille et les ressources actuelles de l'ICU et place too many projects in this category must always be des associations affiliees. Toutefois, ce n'est pas tant le nombre resisted. Those presently under way are: d'initiatives qui pose probleme mais plut6t la capacite de les D Healthy Communities gerer. La direction de l'ICU et celles des associations affiliees D Acid Rain peuvent susciter enormement d'activites en faisant appel a D Cycling Task Force leurs membres benevoles et en recourant a des ressources D Buildings Revival Coalition exterieures. Neanmoins, les secteurs prioritaires doivent etre D Shelter Foundation identifies et ii convient de ne pas s'engager dans de nouvelles Information Initiatives entreprises sans avoir d'abord examine leurs repercussions et sans s'etre assure qu'elles sont conformes la mission D publications a et la culture de l'lnstitut. Le dilemme consistera toujours D conferences a savoir jusqu'ou l'ICU peut aller sans tomber dans !'incohe D research rence; le risque n'est pas de trop entreprendre mais de se D education lancer dans des activites en contradiction les unes avec les Member Services Initiatives autres. D membership criteria On trouvera ci-apres un resume de ces initiatives, illustre D awards de quelques exemples portant sur des activites en cours: D national office/national council D affiliate relations Le "leadership" D direct mail services Certes, que beaucoup d'activites impliquent un role de "leader;" les initiatives qui suivent sont toutefois celles qui sont Public Presence Initiatives les plus indispensables a cet egard. II taut resister a la tenta This area is indicated as a separate initiative, although it is in tion d'inscrire un trop grand nombre de projets dans cette effect the manner in which information and other initiatives are categorie. Les projets actuellement en cours sont les suivants: disseminated. Specific programs must be developed to insure D Communautes en sante that the efforts of Cl Pare brought to the attention of the public, D Pluies acides decision makers, the media, related professions, CIP mem D Groupe de travail sur le cyclisme bers and other practicing planners. The ability to achieve this D Coalition pour la renaissance des batiments is crucial to acquiring the resources to pursue Cl P's mission. D Fonds pour les sans-abri. International Initiatives L'information A small but committed program in the international area by D publication CIP is required to support its mission as the national organiza D conferences tion of Canadian planners. D recherche D Commonwealth Association of Planners D formation. D International Federation of Housing and Planning D Shelter Foundation (Jamaica Project) Les services aux membres D China Exchange D criteres d'adhesion D prix Monitoring D bureau national et Conseil national A process of monitoring needs to be established to assist D relations avec les associations affiliees Council and the National Office to evaluate existing projects D services de publicite directe. and assess proposed projects. Such a monitoring system would have three features: La presence aupres du public 1. all on-going projects would be grouped within the appro Ce secteur est a part, bien qu'il reflete en fail la fa9on dont priate strategic initiatives and be subject to a yearly review !'information sur d'autres initiatives est di/fusee. II convient de by Council (preferably at the final Council meeting for mettre sur pied des programmes precis pour s'assurer que direction to the new Council) to determine whether or not les efforts deployes par l'ICU sont per9us par le public, les 60 PLAN CANADA, 29:3/MAY/MAI 1989 they should be continued for the next year. This evaluation decideurs, les medias, Jes professions apparentees, les mem would provide national office with the mandate to actively bres de l'lnstitut et les autres urbanistes. C'est indispensable pursue the project and make the decisions required during si l'ICU veut obtenir les ressources necessaires a l'accom the year. This evaluation would be based on the following plissement de sa mission. criteria: (1 ) impact on the organization's mission; (2) re quired financial resource commitment; (3) management. Les activites internationales and; (4) financial control; L'ICU a besoin de prevoir un petit programme dynamique 2. all strategic initiatives would be reported on at each council dans le domaine international afin de s'imposer en tant meeting to indicate status and output. Based on the present qu'organisme representant Jes urbanistes canadiens aupres frequency of Council meetings this reporting would occur de: at three intervals during the year. The two "between • l'Association des urbanistes du Commonwealth conference" Council meetings would receive summary D la Federation internationale pour l'habitation, l'urbanisme et evaluations while the final Council meeting would receive a l'amenagement du territoire more comprehensive evaluation, and; • le fonds pour les sans-abri (projet jama'icain) 3. any new project would be subject to the same criteria as in • Jes echanges avec la Chine. item one above plus it would be required to assess its impact on the resources of existing projects and the lnsti Le contr61e tute's ability to manage and finance the project. II importe d'etablir un mecanisme de controle pour aider le This strategic plan is seen as a continuing process. It has Conseil et le bureau national a evaluer Jes projets en cours ou now started and your comments are needed. prevus. Un tel mecanisme de controle incluera Jes trois valets suivants: 1. Taus les projets en cours seront regroupes dans le cadre de l'initiative strategique appropriee et seront soumis chaque annee a l'examen du Conseil (de preference au cours de la derniere reunion du Conseil afin de faciliter la transition avec le nouveau Conseil) pour savoir s'ils doivent etre maintenus l'annee suivante. Dans l'affirmative, le bureau national aura pour mandat de poursuivre active ment les projets en question et de prendre Jes decisions qui s'imposent au cours de l'annee. Cette evaluation s'ef fectuera selon les criteres suivants: (1) les repercussions sur la mission de l'lnstitut; (2) les ressources financieres necessaires; (3) la gestion; et (4) le contr6Ie financier. 2. Toutes les initiatives strategiques devront faire l'objet d'un rapport qui sera presente a chaque reunion du Conseil afin que celui-ci en connaisse l'etat d'avancement et puisse donner son avis. Compte tenu de la frequence actuelle des reunions du Conseil, trois rapports lui seront soumis chaque annee, soit deux evaluations resumees a l'occasion des reunions qui ont lieu entre les congres, et une evaluation plus complete au cours de la reunion du congres. 3. Dans le cas de tout nouveau projet, l'evaluation s'effectuera selon les memes criteres qu'au point 1 ci-dessus; de plus, ii faudra evaluer Jes impacts du projet eu egard aux res sources consacrees aux projets en cours et a l'aptitude de l'lnstitut a gerer et a financer le projet propose. Ce plan strategique est conc;;u comme un processus con tinu. Le voici maintenant annonce et vos commentaires nous seront font utiles. PLAN CANADA, 29:3/MAY/MAI 1989 61 August 6-10, 1989 Conferences/Co~s "Charting the 90's - New Visions For Urban Technology" The 27th Annual Conference of The Urban And Regional June 21 to June 23, 1989 Information Systems Association (URISA) Research For Healthy Cities Boston, Mass., USA International Conference Contact: Tom Palmerlee, Executive Director, URISA, The Hague, Netherlands 319 C Street, SE, Washington DC, 20003, Contact: Research For Healthy Cities, c/o Leiden Tel. (202) 543-7141 Congress Bureau, P.O. Box 16065, 2301 GB Leiden/The Netherlands, (0)71-275299 August 1989 "Planning The Pacific Rim" June 19-21, 1989 American Planning Association Annual Conference "Sustainable Water Resources For The Future" Los Angeles, California, USA The 42nd Annual Canadian Water Resources Conference Contact: Frank Wein, AICP, c/o Michael Brandoman Chateau Halifax Associates, 411 West 5th Street, Suite 1010, Los Angeles, Halifax, Nova Scotia California, 90013 Contact: Elizabeth Langley, Program Chairperson, Environment Canada, 4th Floor, Queen Square, 45 August 22-25, 1989 Alderney Drive, Dartmouth, Nova Scotia, B2Y 2N6, International Conference on Computers in Urban Planning Tel. (902) 426-2132 and Urban Management Centre of Urban Studies and Urban Planning July 3-5, 1989 University of Hong Kong "Quality in the Built Environment" Hong Kong Open House International Association Workshop/Seminar Contact: Conference Secretariat, Centre of Urban Studies Centre for Architectural Research and Development and Urban Planning, University of Hong Kong, Pokfulam Overseas Road, Hong Kong, Tel. 5-8592722, Telex 71919 CERES HX, Contact: Liz Green, Centre for Continuing Education, The Fax 852-5-479907 University, Newcastle upon Tyne, NE1 7RU, UK, Tel. 091-232-8511 ext. 6769, Fax 091-262-1182 September 4-9, 1989 The 1989 Annual Conference of the Assocation for August 1-5, 1989 Preservation Technology Cities 2000: Transportation and Urban Design Chicago, Illinois, USA UCLA Campus Contact Association for Preservation Technology, c/o Los Angeles, California, USA Small Homes Council, 1 East St. Mary's Road, Champaign, Contact: Landscape Architecture Program, UCLA IL, USA 61820, Tel. (217) 333-1801 Extension, P.O. Box 24901, Los Angeles, California, 90024-0901 September 12-15, 1989 International Conference on Planning Education August/Aout 6-9, 1989 Birmingham, England C.I.P. National Conference/ICU Congres National Contact: Christine Field, Conference Administrator, "Planning: More Than Controls"/"L'urbanisme au-dela des Department of Planning and Landscape, Birmingham contr6Ies" Polytechnic, Perry Barr, Birmingham, 842 2SU, Contact: Bernard Moe, P.O. Box 1971, Saint John, New Tel. 021-331-5549, Fax 021-356-5549 Brunswick, E2L 4L 1, (506) 658-2865. Renseignment: Gilles Guerette, C.P. 1971 , Saint Jean, September 12-15, 1989 Nouveau Brunswick, E2L 4L 1, (506) 753-7749 "Planning Education" An International Conference in Celebration of The Royal Town Planning lnstitute's 75th Anniversary Birmingham, UK Contact: Steering Group, Planning Education 1989, c/o Christine Field (Conference Administrator), Department of Planning and Landscape, City of Birmingham Polytechnic, Perry Barr, Birmingham, 842 2SU, UK (021) 331-5549 62 PLAN CANADA, 29:3/MAY/MAI 1989 September 17-21, 1989 October 10-13, 1989 Roads and Transportation Association of Canada Annual European and North American Conference on Urban Conference Safety and Crime Prevention/ Conference europeenne et Palliser Hotel and Convention Centre, Calgary, Alberta. nord-americaine sur la securite et la prevention de la Contact: Gilbert Marier, Director of Member Services; criminalite en milieu urbain Technical Inquiries, Brian E. Hicks, Technical Program Montreal Convention Centre/ Palais des congres de Montreal Manager, RTAC, 1765 St. Laurent Blvd., Ottawa, Ontario, Montreal, Quebec K1 G 3V4, Tel. (613) 521-4052, Fax (613) 521-6542 Contact Montreal Urban Community/Communaute urbaine de Montreal, Bureau du president du comite September 20-27, 1989 executif, 2 complexe Desjardins, C.P. 129, Montreal, Quebec, H5B 1E6, Tel. (514) 280-3507 General Conference of the International Union for the Scientific Study of Population (IUSSP) New Delhi, India October 15-19, 1990 Contact: Bruno Remiche, Executive Secretary, International Third World Congress of the Major Metropolises Union for the Scientific Study of Population, 34 Rue des World Congress Centre Augustins, 4000 Liege - Belgique Melbourne, Australia Contact: Congress Secretary, Metropolis '90, 545 Royal October 5-7, 1989 Parade, Parkville, Victoria, 3052, Australia, Tel. (613) 387 -9955, Fax (613) 387 -312 Association of Collegiate Schools of Planning 31st Annual Conference Portland, Oregon, USA. Contact: PPPM, Hendricks Hall, University of Oregon, Eugene, OR, 97403, (503) 686-3822 PLAN CANADA, 29:3/MAY/MAI 1989 63 Would you like to reach all Planners of the Commonwealth Aimeriez-vous rejoindre tousles urbanistes des pays membres Countries with your ad, for an affordable price? It's possible if du Commonwealth a un coot raisonnable? C'est possible avec you buy an ad in Planners Newsletter which is published three le Planners Newsletter qui est publie trois fois l'an et est times a year and is sent to 1,600 members I and enterprises in distribue a 1 600 membres et entreprises dans 20 pays. 20 countries. Les prix variant entre 315,00$ (CDN) pour une an nonce d'une The prices range from $315.00 (CDN) for a full page ad, to $65 pleine page a 65,00$ (CDN) pour une parution dans I' Annuaire (CDN) to appear in the Professional Directory. 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