Cultural and Recreational Infrastructure in Nova Scotia: Future Investments and Governance Discussion Paper November 2019 CULTURAL AND RECREATIONAL INFRASTRUCTURE IN NOVA SCOTIA: FUTURE INVESTMENTS AND GOVERNANCE Discussion Paper November 2019 AUTHORS Kevin Quigley Kevin Quigley is the scholarly director of the MacEachen Institute for Public Policy and Governance and a professor in the School of Public Administration at Dalhousie University. He is the co-author of the book Too Critical to Fail: How Canada Manages Threats to Critical Infrastructure, which was shortlisted for the Donner Prize in 2018. Paul Beesley Paul Beesley was a research assistant at the MacEachen Institute for Public Policy and Governance at Dalhousie University. Kaitlynne Lowe Kaitlynne Lowe is a research assistant at the MacEachen Institute for Public Policy and Governance at Dalhousie University. ACKNOWLEDGEMENTS This research was commissioned by the Province of Nova Scotia and the Atlantic Canada Opportunities Agency. Disclaimer The information, opinions and interpretations expressed in this report are those of the authors and do not necessarily reflect the official policy or position of the Nova Scotia Department of Transportation and Infrastructure Renewal or the Atlantic Canada Opportunities Agency. The author is responsible for the accuracy, reliability and currency of the information. 1 Table of Contents Executive Summary ........................................................................................................................6 Summary ............................................................................................................................................... 6 Path Forward ......................................................................................................................................... 8 Recommendations ................................................................................................................................ 9 Introduction ........................................................................................................................ 11 The NS Context and the Purpose of this Study ...................................................................... 11 Nova Scotia: Social, Cultural and Economic Context .............................................................. 13 Population Demographics ...................................................................................................... 13 2.1.1. Population Rise and Fall .................................................................................................................. 13 2.1.2. Rural to Urban ................................................................................................................................. 15 2.1.3. Youth Outmigration......................................................................................................................... 17 2.1.4. Aging Population ............................................................................................................................. 19 2.1.5. Population Health ............................................................................................................................ 21 2.1.6. Change in CRI Demands .................................................................................................................. 23 2.1.7. Note on Indigenous Context ........................................................................................................... 23 The Nova Scotia Economy ...................................................................................................... 24 2.2.1. Tourism and Cultural Infrastructure................................................................................................ 25 Economic Contribution of Culture and Sport ........................................................................ 26 Decision-Making and Data about Infrastructure ................................................................... 27 Municipal Governance Structure ........................................................................................... 28 First Nations Governance....................................................................................................... 31 Elected Representation .......................................................................................................... 32 Summary: Nova Scotia Social, Cultural and Economic Context ............................................. 32 Summary of Selected Key Policy Documents Related to Cultural & Recreational Infrastructure 33 Federal Policy ......................................................................................................................... 33 3.1.1. Infrastructure Canada ..................................................................................................................... 33 3.1.2. Recreation Health Policy ................................................................................................................. 36 3.1.3. Green Infrastructure ....................................................................................................................... 36 3.1.4. Atlantic Growth Strategy ................................................................................................................. 37 3.1.5. Pathways to Wellbeing: A Framework for Recreation in Canada 2015 .......................................... 38 Provincial Policy ..................................................................................................................... 39 3.2.1. Department of Communities, Culture and Heritage ....................................................................... 39 3.2.2. Recreation Policy & Grants.............................................................................................................. 40 3.2.3. Cultural Policy & Grants .................................................................................................................. 41 3.2.4. Shared Strategy for Advancing Recreation in Nova Scotia ............................................................. 41 3.2.5. SHIFT: Nova Scotia’s Action Plan for an Aging Population .............................................................. 42 3.2.6. Tourism Policy ................................................................................................................................. 42 3.2.7. Accessibility Legislation ................................................................................................................... 43 Funding Assessment .............................................................................................................. 44 Summary: Federal and Provincial Policy Context .................................................................. 45 Four Ways to Think about Governance and Cultural and Recreational Infrastructure: Overview of Selected Frameworks from other Jurisdictions .......................................................................... 46 2 Command Frameworks .......................................................................................................... 47 4.1.1. Multi-Criteria Decision Analysis (MCDA): The World Bank’s Infrastructure Prioritization Framework 47 Consumer Frameworks .......................................................................................................... 51 Community Frameworks ........................................................................................................ 53 Coping Frameworks ............................................................................................................... 54 Summary: Selected Infrastructure Frameworks .................................................................... 55 Summary Table (Cultural Theory) .......................................................................................... 57 General Discussion of the Findings: Connecting Context to CRI Governance ........................... 58 Information-gathering ........................................................................................................... 58 Standards ............................................................................................................................... 59 Behaviour Change .................................................................................................................. 60 Context and Governance ....................................................................................................... 62 Conclusion ........................................................................................................................... 64 Appendices .......................................................................................................................... 65 Appendix: Methods................................................................................................................ 65 Appendix: GTF Municipal Recipients ..................................................................................... 66 Appendix: Example Application for Funding ......................................................................... 67 Appendix: Command Frameworks ........................................................................................ 69 7.4.1. The World Bank – Infrastructure Prioritization Framework ........................................................... 69 7.4.2. Guiding Questions to Build MCDA Tool .........................................................................................