Caleb Horn COMMUNITY-BASED PLANNING: THEORY & PRACTICE Supervised Research Project Submitted to Professor Lisa Bornstein School of Urban Planning McGill University December 2016 Abstract / Résumé Located within the District of Saanich in Greater Victoria, British Columbia, the Mount Tolmie–Camosun Community has not had an official planning document updated for its local area since 1998. With new development pressures and a new Action Plan seemingly superseding local plans for part of the community, the need for a community plan has never been greater. Partnering with two local community associations, the author has prepared a community-based planning document for the community to address issues of land use, environment, transportation, and more. This document, the Mount Tolmie–Camosun Community Plan, will provide the community with policy to help guide future development in the area’s neighbourhoods. Highlights of the plan include redevelopment of a car-centric commercial centre to a walkable neighbourhood core, the restoration of a culverted formerly salmon-bearing creek, new parkland providing residents with natural space, and improved pedestrian and cycling infrastructure throughout. Analysis of the author’s experience focuses on differences between the planning process in theory and in practice, as well as differences between officially-sanctioned and community-based plans. While no major differences between municipal and community visions were found, a disconnect between the local government’s focus on long-term planning and the community’s desire for short-term action was noted. Situé dans le district de Saanich dans le Grand Victoria en Colombie-Britannique, la communauté Mount-Tolmie – Camosun n’a connu aucune mise à jour des documents officiels d’urbanisme pour leur secteur local depuis 1998. Avec de nouvelles pressions de développement et un nouveau Plan d’action qui semble supplanter les plans locaux pour une partie de la communauté, le besoin pour un plan communautaire n’a jamais été aussi important. Travaillant conjointement avec deux associations communautaires locales, l’auteur a préparé un document d’urbanisme basé sur les besoins de la communauté pour adresser les enjeux liés à l’occupation du territoire, l’environnement, le transport et plus. Ce document, le plan communautaire Mount-Tolmie–Camosun, offrira à la communauté des politiques pour aider à guider le développement futur des quartiers de ce secteur. Le plan comprend notamment le redéveloppement d’un centre commercial autocentrique vers un quartier central accueillant aux piétons, la remise en état d’un ruisseau à caniveau qui accueillait anciennement du saumon, des nouveaux parcs pour offrir aux résidents des espaces d’habitat naturel, et des infrastructures piétonnes et cyclistes améliorées à travers le territoire. Une analyse de l’expérience de l’auteur se concentre sur les différences entre les processus d’urbanisme en théorie et en pratique, ainsi que les différences entre les plans officiellement sanctionnés et les plans issus de la communauté. Bien qu’aucune différence majeure entre les visions municipales et communautaires ne soit ressortie, il est à noter que la planification à long terme du gouvernement ne concorde pas toujours avec le désir de la communauté pour des actions à court terme. i Acknowledgements I would like acknowledge and thank my supervisor, Dr. Lisa Bornstein, for support and feedback throughout my Supervised Research Project which dragged on much longer than I’m sure she anticipated. In addition, I would like to thank Dr. Raphaël Fischler who agreed to act as second reader on short notice and provided valuable insight. Recognition should also be given to Dr. Reuben Rose-Redwood, from the Department of Geography at the University of Victoria, who provided support while I was working in Saanich. Furthermore, I would like to acknowledge and recognize the Mount Tolmie Community Association and Camosun Community Association and their boards of directors for partnering and sponsoring this project. I would especially like to thank Marlene Davie from Mount Tolmie, and Sandie Menzies from Camosun for their help and guidance throughout the process. Most importantly, I would like to thank all those who participated in the visioning survey and workshop for providing valuable feedback used to formulate this plan. Lastly, I thank my friends and family for their continual encouragement. Specifically, I would like to acknowledge my mom and dad for their loving support, Zoé for looking out for me, and Will Toledo for keeping me focussed. I couldn’t have done it without you all. ii Table of Contents Abstract / Résumé ............................................................................................................... i Acknowledgements ............................................................................................................. ii Table of Contents ................................................................................................................ iii CHAPTER ONE Introduction .............................................................................................. 1 Context .............................................................................................................................. 2 Project Proposal ................................................................................................................ 4 CHAPTER TWO Literature Review ..................................................................................... 5 Community-based Planning in Theory ............................................................................... 6 Themes of Analysis ......................................................................................................... 10 Community-based Planning Examples ............................................................................ 11 Grassroots Planning in Saanich....................................................................................... 14 CHAPTER THREE Methods .............................................................................................. 16 Process ........................................................................................................................... 17 Next Steps ....................................................................................................................... 18 Plan Format ..................................................................................................................... 19 CHAPTER FOUR Mount Tolmie–Camosun Community Plan (Draft) ............................. 20 Table of Contents ............................................................................................................... ii List of Figures .................................................................................................................... iv List of Tables ..................................................................................................................... v 1.0 Introduction ............................................................................................................. 1 2.0 Community Profile................................................................................................... 3 3.0 Community Vision ................................................................................................. 13 4.0 Built Environment .................................................................................................. 16 5.0 Natural Environment ............................................................................................. 31 6.0 Mobility ................................................................................................................. 45 7.0 Community ........................................................................................................... 64 8.0 Next Steps ............................................................................................................ 70 iii CHAPTER FIVE Analysis .................................................................................................. 97 The Planning Process ..................................................................................................... 98 Bottom-up Community Planning ...................................................................................... 99 Lessons Learned ........................................................................................................... 101 CHAPTER SIX Conclusion .............................................................................................. 103 REFERENCES ................................................................................................................. 106 APPENDIX A. Visioning Survey Sample. ...................................................................... 110 APPENDIX B. MTCCP Sources of Input. ....................................................................... 114 iv CHAPTER ONE Introduction 1 Context Located on the southeast tip of Vancouver Island, the District of Saanich is an idyllic suburban municipality in Greater Victoria. Saanich prides itself on environmental sustainability and its high quality of life. The District’s 2008 Official Community Plan (OCP) is guided by its vision: “Saanich is a sustainable community where a healthy natural environment is recognized as paramount for ensuring social well-being and economic vibrancy, for current and future generations” (District of Saanich, 2008). While