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Finding Common Ground

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Finding Common Ground Focus Consulting Inc. Focus on what you can do, not what you cannot. Finding Common Ground Submitted to: City of Edmonton and Edmonton Homeless Commission Submitted by Focus Consulting Inc. In association with Gary Gordon & Associates And the Center for Housing Policy, Washington DC March 2014 © Focus Consulting Inc. Table of Contents EXECUTIVE SUMMARY .............................................................................................................................................. i 1.0 Introduction ................................................................................................................................................ 1 2.0 Setting the context ................................................................................................................................... 2 2.1. Impact of the existing planning process in Edmonton ....................................................... 5 2.2. Brief overview of the planning system ..................................................................................... 5 2.2.1. Innovative Planning Process .............................................................................................. 10 2.2.2. Summarizing the current planning context: implications for recommendations in this report ...................................................................................................... 11 3.0 Review of best practice in other cities ......................................................................................... 13 3.1. Synthesis of approaches and strategies identified ........................................................... 13 3.1.1. Establish and promote an explicit policy framework ............................................. 15 3.1.2. Establish and publicize clear and transparent selection criteria ....................... 16 3.1.3. Early and effective key stakeholder engagement ..................................................... 17 3.1.4. Carefully structure public meetings ............................................................................... 18 3.1.5. Create mechanisms for meaningful engagement ...................................................... 19 3.1.6. Use of Good Neighbour Agreements .............................................................................. 20 3.1.7. Setting ground rules for engagement ............................................................................ 20 3.1.8. Planning smaller scale integrated development ....................................................... 21 3.1.9. A caveat: best efforts not always successful ............................................................... 21 3.2. Exploring the option of a review panel .................................................................................. 21 4.0 Lessons and insights for Edmonton .............................................................................................. 23 4.1. Use of Good Neighbour Agreements ....................................................................................... 23 4.2. Elaboration on recommended options .................................................................................. 24 4.2.1. Public Education and awareness campaign ................................................................ 24 4.2.2. Provide training on effective community engagement .......................................... 25 4.2.3. Update and publish objective evaluation and selection criteria ........................ 26 4.2.4. Explore the option of a review panel to manage contested developments ... 26 5.0 Appendices ............................................................................................................................................... 28 Appendix A: Phase 1 Edmonton case studies .................................................................................. 28 Appendix B: Phase 2 Jurisdictional review case studies ............................................................ 28 Appendix C: Links to cited reference documents .......................................................................... 28 Appendix D: Draft terms of reference for a Neighbourhood Housing Adjudication Panel ............................................................................................................................................................................. 28 Finding Common Ground EXECUTIVE SUMMARY This research report was jointly commissioned by the City of Edmonton Housing and Economic Sustainability Branch and the Edmonton Homeless Commission to explore opportunities to create a more constructive process of dialogue around proposals for new development, particularly affordable and supportive housing. The research was undertaken in two phases, the first developing an understanding of issues and concerns in Edmonton that inspired the research through consultations with officials, developers and community representatives; and the second a review of best practice across North America to investigate approaches and mechanisms that other cities have implemented that have had success in improving the development approval process. Based on this background research a number of options and approaches for a more constructive dialogue around proposals for new developments were identified and assessed for relevance in Edmonton. Key Findings and Recommendations There was an increase in funding for affordable housing projects made available from 2006 to 2012 due in part to Edmonton’s adoption of a 10 Year Plan to End Homelessness using the housing first approach. While many of these projects were welcomed several projects were opposed due to an environment of uncertainty where residents, developers and City staff held different expectations around neighbourhood change and what is permitted using standard zoning. Most funding processes dictate a requirement for public notification for affordable and supportive housing projects but this does not define the process or provide direction on effective engagement. As a result there is currently little consistency in public engagement on affordable and supportive housing projects in Edmonton. Proponents report a lack of clarity over expectations and process for engaging meaningfully with communities. Primary resident concerns were found to stem not so much from built form or scale but the perceived characteristics of who would live in the new development and how the properties will operate once they are built. The current development process tends to focus attention at the development approval stage, providing little room for residents to engage in dialogue around change in their neighbourhood. This indicates a need to break down stereotypes of formerly homeless individuals and provide for a process of proactive dialogue where resident concerns can be heard without setting the stage for a confrontational relationship. One specific example, based on a preliminary review of Edmonton’s Housing Accountability Framework, is the current use of Good Neighbour Agreements (GNAs) as a form template rather than an opportunity for negotiation between the community and proponent. Based on the experience of other jurisdictions, it is not the document per se that is important, but rather the process of dialogue that leads to formalizing the i Finding Common Ground agreement that has the largest impact. The current use of boiler plate GNAs as a formal requirement should be reconsidered in Edmonton. Their use could instead remain a tool for communication by proponents and community groups. There is often confusion over the role of the City in affordable housing developments; should staff be impartial or act as an advocate to meet the goals of the 10 Year Plan? The development approval process requires City staff to apply judgment and interpretation against a development application. This dual role for the City, the requirement for interpretation and ambiguity in existing zoning of supportive housing adds to confusion and likelihood of confrontation over new development proposals. A more purposeful process of engagement and communication both around general planning policies and site specific approvals can help to address this misunderstanding and confrontation. The following initiatives are recommended for further development and implementation: 1. Initiate, in collaboration with provider networks, the Homeless Commission and Homeward Trust, a public awareness and education campaign about affordable and supportive housing plans and policies, including highlighting existing policy objectives such as locating non-market housing in all areas of the city. This awareness campaign should precede the identification of specific sites for affordable housing. It would extract and highlight key policy elements from the existing array of plans and strategies related to affordable housing and present them alongside a comprehensive set of objectives for realizing broad public benefit. This process should include the development of collateral materials and relevant research on best practices, impacts and outcomes of affordable housing projects. This research can dispel myths and stereotypes or, where impacts are identified, design appropriate refinements to proposals. 2. Provide training and guidance in undertaking effective community engagement to affordable and supportive housing providers. Funders should assist proponent organizations which may have limited capacity to develop effective engagement processes with the potential to provide facilitation and
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