PLANNING AND DEVELOPMENT IN FRAGMENTED CITY-REGIONS: A CASE STUDY OF SASKATOON’S WILLOWS RESIDENTIAL DEVELOPMENT (1992-2004) A Thesis Submitted to the College of Graduate Studies and Research In Partial Fulfillment of the Requirements For the Degree of Master of Arts In the Department of Political Studies University of Saskatchewan Saskatoon, Canada By Jacqueline Thomarat © Copyright Jacqueline Thomarat, August 2007, All Rights Reserved Permission to Use In presenting this thesis in partial fulfillment of the requirements for a Graduate degree from the University of Saskatchewan, I agree that the Libraries of this University may make it freely available for inspection. I further agree that permission for copying of this thesis in any manner, in whole or in part, for scholarly purposes may be granted by the professor or professors who supervised my thesis work or, in their absence, by the Head of the Department of Political Studies or the Dean of the College of Graduate Studies and Research. It is understand that any copying or publication or use of this thesis or parts thereof for financial gain shall not be allowed without my written permission. It is also understand that due recognition shall be given to me and to the University of Saskatchewan in any scholarly use which may be made of any material in my thesis. Requests for permission to copy or to make other use of material in this thesis in whole or in part should be addressed to: Head of the Department of Political Studies University of Saskatchewan 9 Campus Drive Saskatoon, Saskatchewan S7N5A5 i Abstract This thesis examines a protracted planning process in the Saskatoon city-region. More specifically, it examines the planning process which occurred between 1992 and 2004 regarding a residential housing development on The Willows Golf Course. This thesis reveals that the protracted planning process was the result of several factors including: the fragmented character of governance; the planning and development policies and decision-making process in the Saskatoon city-region; the multiplicity of actors; and the political dynamics that arose in an intermunicipal conflict between the City of Saskatoon and the Rural Municipality of Corman Park. The thesis concludes that this case study provides some important lessons for both governments and planners in the Saskatoon city-region as well as other city-regions on opportunities and obstacles for improving planning processes. The first major lesson is that problems emerge when an innovative proposal lands in the context of an antiquated policy framework that cannot adequately deal with it. The second major lesson is that the current regional planning mechanisms are not conducive to comprehensive long-term planning for the city-region. The third lesson is that in some cases the opposition is to changes to the traditional decision-making processes as much as it is to the proposed project. The fourth major lesson is that timely and effective communication is very important for determining character of the political dynamics surrounding a development proposal. Miscommunication can create problematic political dynamics. The fifth major lesson is that economic considerations are inextricably tied to the politics of planning and development. This study concludes with two major recommendations. The first recommendation is that in order to overcome the negative outcomes of fragmented governance systems, formal structures and protocols must be improved to ensure that municipalities continue to communicate effectively with one another in difficult circumstances created by increasing development pressure, especially when they are likely to disagree on a particular development proposal. The second recommendation is that given that there is no guarantee that neighbouring municipal governments can always reach agreement between them, legitimate and efficient dispute settlement mechanisms are required both at the regional level and at the provincial level. ii Acknowledgments The process of completing a Master of Arts degree was an exciting challenge which I was able to live up to thanks to the unwavering support of many individuals and organizations. I am pleased to take this opportunity to express my gratitude for their generous contributions. I would like to thank the College of Graduate Studies and Research and the Department of Political Studies for their generous financial support and for the opportunity to work as a Graduate Teaching Fellow at the University of Saskatchewan. It was an invaluable learning experience which I will cherish for years to come. I must also thank the people who provided me with guidance, advice and encouragement throughout this process. I would like to thank my Thesis Supervisor, Dr. Joe Garcea for his direction, his patience, and his insight into the subject matter. He has contributed a great deal to my development as a student, as a researcher and as a member of the community. I would like to thank the members of my committee, Professor Ken Pontikes and the Honourable Roy Romanow, whose years of experience in the field are very much reflected in the final draft of this thesis. I would like to thank Professor Anna Hunter and Dr. Greg Poelzer for supporting my pursuit of a graduate degree. Lastly, I would like to thank the Graduate Chair, Dr. Hans Michelmann who provided me the opportunity to work as a Research Assistant for the Department of Political Studies as an undergraduate student, which is where my interest in graduate studies first came to bear and for his counsel along the way. I must also thank the community stakeholders who agreed to participate in this process and contributed a great deal to the telling of The Willows Residential Development story. Furthermore, I must acknowledge and thank my friends and family for their understanding and assistance throughout this process. To my many preliminary draft editors, Greg Thomarat, Rachel Clare, Rhiannon Stromberg, Ashley Metz, my greatest thanks. To my colleagues in the Department of Political Studies graduate program, your friendship will not be forgotten no matter where life may take you. Thank you! iii Dedication This thesis is dedicated to Kevin, Alan, JoAnn, Michelle, Greg and Rufus, my family. iv Table of Contents Permission to Use … i Abstract … ii Acknowledgements … iii Dedication … iv Table of Contents … v Chapter 1: Introduction 1.1 Introduction … 1 1.2 Background and Core Themes … 3 1.3 Objectives and Research Questions … 4 1.4 Theoretical Perspectives … 5 1.4.1Policy Communities and Networks … 5 1.4.2 Liberal Pluralism … 6 1.4.3 Regime Theory … 8 1.4.4 Technical and Political Rationality in Community Planning … 10 1.5 Value of Thesis … 12 1.6 Methodology … 13 1.7 Overview of Chapters … 13 Chapter 2: Saskatoon City-Region Policies for Planning, Annexation & Development 2.1 Introduction … 16 2.2 Statutory Context … 16 2.2.1 Planning and Development Act, 1983 … 17 2.2.2 Urban Municipalities Act, 1984 … 20 2.2.3 Rural Municipalities Act, 1989 … 22 2.3 Municipal Policies … 22 2.3.1 Saskatoon Planning District Development Plan … 23 2.3.2 Rural Municipality of Corman Park Development Plan … 25 2.3.3 City of Saskatoon Development Plan and Related Policies … 27 2.4 Conclusion … 35 Chapter 3: Saskatoon’s Willows Residential Development: Phase 1 (1992-1994) 3.1 Introduction … 36 3.2 The First Willows Residential Development Proposal (1993) … 36 3.3 Key Stakeholders … 37 3.3.1 City of Saskatoon … 37 3.3.2 Willows Golf Corporation … 38 3.3.3 Rural Municipality of Corman Park … 38 3.3.4 International Capital Corporation … 39 3.4 Phase I Decision-Making Processes and Political Dynamics … 39 3.4.1 Decision-Making Process … 42 3.4.2 Political Dynamics … 43 3.5 Conclusion … 44 v Chapter 4: Saskatoon’s Willows Residential Development: Phase II-- Development Plan Amendment (1997-2001) 4.1 Introduction … 45 4.2 The Second Willows Residential Development Proposal (1999) … 45 4.3 WRD Phase II and III Key Stakeholders … 47 4.3.1 The Willows Development Corporation … 47 4.3.2 The City of Saskatoon … 48 4.3.3 The Rural Municipality of Corman Park … 49 4.3.4 The District Planning Commission … 50 4.3.5 Policy Networks … 50 4.4 Phase II Decision-Making Processes … 51 4.5 Political Dynamics … 66 4.6 Conclusion … 69 Chapter 5: Saskatoon’s Willows residential Development: Phase III-- Annexation Negotiations (1999-2004) 5.1 Introduction … 70 5.2 Phase III Decision-Making Process … 70 5.2.1 Regime Change … 75 5.3 Annexation and Tax Loss Compensation Negotiations … 80 5.3.1 Annexation Compensation … 80 5.3.2 Tax Loss Compensation Negotiations … 81 5.3.3 Consultation of the Policy Community … 89 5.3.4 Complementary Resolution … 91 5.4 Phase III Political Dynamics … 92 5.5 Conclusion … 95 Chapter 6 : Conclusion 6.1 Introduction … 96 6.2 Summary of Findings … 96 6.2.1 Summary of Findings Regarding Policies … 96 6.2.2 Summary of Findings Regarding Decision-Making Processes … 97 6.2.3 Summary of Findings Regarding Political Dynamics … 98 6.3 Lessons Learned from the WRD … 100 6.3.1Lessons Regarding Policies … 100 6.3.2 Lessons Regarding Decision-Making Processes … 103 6.3.3 Lessons Regarding Political Dynamics … 105 6.4 Recommendations for Reform … 107 6.5 Further Research … 109 Appendix A: The Five Corners Development Case Study … 111 Appendix B: Chronology of Events … 114 WRD: Phase I … 114 WRD: Phase II & III … 115 Bibliography … 124 vi Chapter 1: Introduction 1.1 Introduction In 1992 and 1999 two different owners and developers attempted to receive approval from the City of Saskatoon to construct an urban-residential housing development on The Willows Golf Course lands, which were then located within the boundaries of the Rural Municipality (RM) of Corman Park. The first development proposal was denied, the second was approved after years of negotiations.