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Canada’s Urban
Strategy
A Blueprint for Action
FINAL REPORT
Prime Minister’s
Caucus Task Force
on Urban Issues
Chair: Judy Sgro, MP
November 2002
November 19, 2002 The Right Honourable Jean Chrétien Prime Minister of Canada House of Commons Ottawa, Ontario K1A 0A6 Dear Prime Minister: The members of the Prime Minister’s Caucus Task Force on Urban Issues are pleased to present the conclusion of our deliberations on the future of Canada’s urban regions. Our final report sets the stage for implementing the recommendations for Canada’s Urban Strategy. We are delighted that the 2002 Speech from the Throne included many of our recom- mendations from the Interim Report of May 2002. We believe this final report offers an innovative blueprint for sustainable urban regions in every part of Canada. The Task Force is proud to be part of the continuing debate on Canada’s urban regions. Although this final report concludes our mandate, it is by no means the end of the pursuit for a national agenda on urban issues. Let us have the courage and the vision to take the next steps on our journey. This is an exciting opportunity for all governments and all citizens to shape the future direction of Canada. Thank you for recognizing the importance of the urban regions to Canada’s future prosperity. We trust the ideas and recommendations presented in this final report will inspire and guide our political leaders to work together to ensure the ‘Canada We Want’ is a reality for the 21st century. Sincerely, Judy Sgro, Chair
ii CANADA’S URBAN STRATEGY: A BLUEPRINT FOR ACTION
Prime Minister’s Caucus
Judy Sgro, M.P. The Honourable Dr. Bernard Patry, M.P.
York West /Ouest Tommy Banks Pierrefonds-Dollard
Chair Senator (Alberta) Vice Chair
Vice Chair
Reg Alcock, M.P. Carole-Marie Allard, M.P. Mauril Bélanger, M.P.
Winnipeg South /Sud Laval Est /East Ottawa-VanierTASK FORCE iii
Task Force on Urban Issues
The Honourable Geoff Regan, M.P. Andy Savoy, M.P.
Thelma Chalifoux Halifax West /Ouest Tobique-Mactaquac
Senator (Alberta)
Hélène Scherrer, M.P. Alan Tonks, M.P. Bryon Wilfert, M.P.
Louis Hébert York South-Weston/ Oak Ridges
York Sud-Westoniv CANADA’S URBAN STRATEGY: A BLUEPRINT FOR ACTION
Today’s Vision
for Tomorrow’s Reality
governments in the Canadian federa-
T
he Prime Minister’s Caucus Task
Force on Urban Issues received tion”. [FCM letter to Task Force
its mandate in May 2001 and members, August 2002]
immediately began consulting with There is extraordinary public inter-
Canadians to find ways in which “the est in our Interim Report. Since May
Government of Canada can work more 2, 2002, our web site has had 12000
collaboratively, within our federal visits and more than 5300 copies of
jurisdiction, to strengthen the quality of the report have been downloaded. We
life in our large urban centres”. [Press have also received written submis-
Release, May 2001] In May 2002, sions and requests for information
The Task Force released its Interim from all sectors and all regions.
Report, Canada’s Urban Strategy: The Government of Canada
A Vision for the 21st Century. This responded to the debate on urban
Final Report concludes our mandate. issues on several levels. Within the
It marks a new phase in the debate on Privy Council Office, an internal Task
the future of Canada’s urban regions. Force on Urban Communities was
Our objective was to recommend established to develop a profile of the
ways in which the Government of federal presence in urban centres,
Canada can work more effectively research into best practices and to
within our jurisdiction to enhance the explore ways of integrating federal
relationship with our urban partners. programs. Every federal department is
It was not within our mandate nor preparing a Sustainable Development
within our means to determine a fiscal Strategy and Environment Canada
accounting of the recommendations has created a “sustainable develop-
contained in either report. Others will ment lens”. As well, Industry Canada
decide the financial implications of created a Sustainable Cities Initiative
our recommendations. to advance this agenda in Johan-
The response to the Interim Report nesburg and beyond. A Sustainable
has been overwhelmingly favourable Development Coordinating Committee
and positive. We received widespread was established comprising Deputy
support from both public and private Ministers from departments that are
sectors in response to the direction of responsible for programs related to
our recommendations. The Federation sustainable development.
of Canadian Municipalities called it “a Provincial and municipal govern-
compelling analysis of the urban ment initiatives, such as ‘Smart
condition and of the role of municipal Growth’, support the concept thatTODAY’S VISION FOR TOMORROW’S REALITY v Canada’s urban regions are part of a summits, and symposiums. Members broader system that integrates many of the Task Force are regularly invited components. to attend as participants and guest During the second phase of our speakers. mandate, members of the Task Force Much has been written about the continued to visit major urban state of Canada’s cities and the effects centres, to meet with provincial minis- of urbanization on the lives of ters, civic officials, urban experts, and Canadians. According to the business and community leaders. Conference Board of Canada, “cities The Government of Canada listened are at the centre of our new economy, and acted on the Interim Report. We the cradle of innovation, and the venue are pleased the 2002 Speech from the for wealth creation” [Anne Golden Throne recognized that “healthy presentation, “Cities and communities and competitive cities are Globalization: Communities in a vital to our individual and national Changing World”, 71st Annual well-being”. The Throne Speech also Couchiching Conference: August included many of our central recom- 2002]. Clearly, there is wide recogni- mendations including the development tion that urban regions have become of a national urban strategy. This is a more relevant and more important clear signal that the Government of within the Canadian federation. Canada is committed to this impor- At the same time, municipal tant and essential agenda. governments face enormous chal- Since the Task Force was created in lenges. There is pressure on all May 2001, there has been tremendous governments to meet their obligations. national interest in urban issues. It is Canada West Foundation refers to one of the ‘hottest’ topics among “cities at the crossroads” [Canada West federal, provincial and municipal Foundation, Discussion Paper August governments. Media, economists, 2002]. We agree with the assessment social scientists, and business leaders that if we do not act now, the oppor- all talk about the growing importance tunity for change will be lost. The of urban regions to Canada’s options for action being debated range economic prosperity and the subse- from restructuring the constitution to quent socio-economic and environ- provide more autonomy for cities to mental effects. developing new means and new fiscal Several important non-government tools to serve municipalities. organizations such as the Conference At the core of the debate is the rela- Board of Canada, Federation of tionship between and among federal, Canadian Municipalities, Canadian provincial and municipal governments Policy Research Networks, Canada and how to develop opportunities to West Foundation, Organisation for strengthen these partnerships. The Economic Co-operation and significant presence of the Government Development, and the National of Canada in urban regions is a major Roundtable on the Environment and factor in this equation and key to its the Economy, held conferences, success. The Organisation for
vi CANADA’S URBAN STRATEGY: A BLUEPRINT FOR ACTION
Economic Co-operation and economic growth and social capital
Development endorses this concept: that will ensure a successful and
“Currently, there is a new rationale for prosperous Canada.
more federal involvement, not to repro- In this report, we present a blue-
duce centralised management but print for action that will provide
through negotiated planning with mechanisms for the Government of
formal institutional mechanisms Canada to implement Canada’s
concerning area-based partnerships Urban Strategy. This blueprint will
between three levels of government” shape the future direction of our
[OECD: Territorial Review of Canada, relationship with our key urban
2002]. Canada’s Urban Strategy is partners and with provincial and
the Task Force’s response to this municipal governments. It refines the
challenge. recommendations from the Interim
The shift from a rural-based econ- Report on transit/transportation,
omy to an urbanized population that housing and infrastructure and offers
has seen urban centres emerge as the new tools to ensure sustainability in
main engines of the nation’s economy these areas.
with social and environmental conse- A new approach means reviewing
quences, has led to one of the most and reorienting existing partnerships
important debates of the century for while building new ones, at the same
Canada and enormous challenges for time respecting our federal jurisdic-
rural Canada. tion and obligations. The Task Force
Canada is now one of the world’s recommends a Cabinet Minister be
most urban nations. Four out of five assigned the responsibility to develop
Canadians currently live in large Canada’s Urban Strategy and
urban centres and there is every indi- implement an action plan to ensure
cation that this trend will continue. the voices of urban regions are heard.
There is widespread agreement that it Otherwise, our efforts will, at best, be
is time for a new approach. fragmented and our results will be
We cannot ignore the major chal- incremental.
lenges facing our country; an aging This blueprint will assist political
population, urbanization, growing leaders in making the right choices to
cultural diversity and a widening realize Canada’s potential. It is built
income gap. The 2002 Speech from on the strength of all its regions and
the Throne proposed “new partner- its citizens and can serve as the foun-
ships, a new urban strategy, a new dation for the ‘Canada We Want’ that
approach” to ensure competitive cities will make our children, grandchildren,
and healthy communities. This will and their descendants proud.
inspire us to invest in those areas of
The full report is available on The Prime Minister’s Caucus Task Force on Urban
Issues Web site: www.liberal.parl.gc.ca/urb.1 A Vision of Urban Sustainability: 2020 . . . . . .1
Economic Competitiveness
Social Harmony
A Sustainable Environment
Urban Revitalization
Education and Skills
2 Canada’s Urban Strategy:
A Blueprint for Action . . . . . . . . . . . . . . . . . . . . . . . . .5
KEY ELEMENTS OF CANADA’S URBAN STRATEGY . . . . . . . . . . . . . . . . .6
Coordination and Integration
Collaboration and Consultation
Federal Objectives of Canada’s Urban Strategy
Best Practices and Research
3 Implementing Canada’s Urban Strategy . . . .8
4 Three Priority Programs . . . . . . . . . . . . . . . . . . . . . .10
A NATIONAL AFFORDABLE HOUSING PROGRAM . . . . . . . . . . . . . . . . .11
A NATIONAL TRANSIT/TRANSPORTATION PROGRAM . . . . . . . . . . . . . .14
A NATIONAL SUSTAINABLE INFRASTRUCTURE PROGRAM . . . . . . . . . . . .17
5 Moving Forward to 2020 . . . . . . . . . . . . . . . . . . . . .21
6 Appendices . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .23
ACKNOWLEDGEMENTS
WRITTEN SUBMISSIONS – PHASE II
RECOMMENDATIONS FROM THE INTERIM REPORT
PRIME MINISTER’S PRESS RELEASE MAY 2001A VISION OF URBAN SUSTAINABILITY: 2020 1
A Vision of Urban Sustainability: 2020
■ Edmonton CMA to 1.1 million;
T
he Task Force believes that by
2020, Canada’s status as a ■ Halifax CMA to almost half a
world leader should be based on million;
integrating and balancing economic ■ Winnipeg CMA to over 700,000; and
competitiveness, social harmony, a ■ Ottawa-Gatineau CMA is projected
sustainable environment, and a high to grow to 1.3 million.
quality of life for all Canadians. [Statistics Canada, Special Projections]
We want well-managed, healthy
Economic Competitiveness
communities infused with cultural
It is now more important than ever for
diversity, equal access, sustainable
the Government of Canada to provide
environments, and innovation. Urban
opportunities to balance social and
regions should be a blend of distinct
economic growth. Urban regions are
communities – centres within centres,
the most powerful economic engines
villages within cities – with unique
of the country:
economic, social and cultural charac-
■ Halifax accounts for 47% of Nova
teristics. They will become the focal
Scotia's GDP;
points of interaction and enterprise
■ Montreal’s Urban Community
within the larger regions, all with their
accounts for 49% of Quebec’s GDP;
own purpose, flavour, and community
■ Greater Toronto Area and Ottawa
pride.
region combined account for more
By 2020, it is estimated that
than half of Ontario's GDP;
Canada’s population will be approxi-
■ Winnipeg accounts for 67% of
mately 36 million, with 85-90% of our
Manitoba’s GDP;
population and the vast majority of
■ Calgary and Edmonton together
jobs located in the major urban
account for 64% of Alberta’s GDP;
centres. Most of the population will be
and
living in the 25 largest urban regions,
■ Vancouver accounts for 53% of
with 6 of these regions home to more
British Columbia's GDP.
than half of Canada’s citizens.
[‘Metropolitan Outlook’. Conference
Statistics Canada’s projections for
Board of Canada, Spring 2001]
population growth in the eight largest
Urban regions should possess clus-
Census Metropolitan Areas (CMA’S)
ters of economic activity in a range of
are based on continuing trends in
different areas; such as, financial
fertility, mortality and migration:
services, new media, business
■ Vancouver CMA is projected to grow
services, manufacturing, transporta-
from 2 million to 3 million;
tion, biomedical and biotechnology.
■ Toronto CMA is expected to grow to
Our universities and colleges should
6.6 million;
play a vital role in training skilled
■ Montreal CMA to 3.8 million;
employees, undertaking applied and
■ Calgary CMA to 1.2 million;2 CANADA’S URBAN STRATEGY: A BLUEPRINT FOR ACTION
basic research, and commercializing strengthen and support the cultural
our research potential. diversity of Canadian urban society.
Canadians want to have more and The Government of Canada will
better transportation options. Fast rail “work with interested provinces to
networks should be part of an inter- expand on existing pilot programs” and
modal transportation network to carry will “close the gap in life chances
people and goods more efficiently and between Aboriginals and non-
quickly to their destinations as well as Aboriginals” [2002 Throne Speech].
inter-regional links to the major Our urban vision of 2020 should see
centres. This is the key to economic the scope of the Urban Aboriginal
prosperity. Strategy extended to all urban
regions. By 2020; “we hope to see
Social Harmony
more Aboriginal professionals, more
Canadians are justifiably proud of Aboriginal women in both professional
their social safety net which reflects and political fields”. [Hon. Thelma
the values and principles that are at Chalifoux, Senator (Alberta), Member
the very heart of our society. These of the Prime Minister’s Caucus
supports should continue for all fami- Task Force]
lies so that by 2020 we should see a Canada will have a large and signif-
dramatic reduction in child poverty in icant senior population, estimated by
Canada, as well as improvements in Statistics Canada to rise to 6.7 million
the quality of life for seniors living by 2021. Our urban regions should be
below the poverty line, the socially prepared to meet the increased
disadvantaged and marginalized demands for health care, home care,
members of society. housing and social services for this
Canada’s urban regions are safe growing sector of society. [Statistics
places to live, crime rates are low Canada: Population Projections]
compared to cities in the US and The arts and sciences should
Europe, and measures are in place to flourish side by side to create an
secure our borders. Personal safety is environment that is smart, vibrant
important to Canadians and we want and attractive.
to continue to make our communities It is clear that investments in
safe, protect our citizens and coordi- people and social infrastructure by all
nate with all orders of government to orders of government in harmony with
strengthen our community policing civil society should identify Canada as
and national security forces. a nation of healthy, well-educated and
The majority of the increase in productive citizens.
Canada’s population will be fuelled by
immigration with the vast majority of A Sustainable Environment
immigrants settling in the major Canada has the capacity to be a world
urban centres. [Statistics Canada: leader in new infrastructure design;
Annual Demographic Statistics, that is, office buildings, transit
Catalogue No. 91-213] It is critical that systems, water and sewage treatment
governments be prepared to plants, that meet reduced targets ofA VISION OF URBAN SUSTAINABILITY: 2020 3
green house gas emissions, and which based areas if we invest now.
are environmentally ‘clean’ in accor- By 2020, initiatives taken by all
dance with international agreements orders of government should reduce
such as the Kyoto Protocol. We have the noxious emissions and ‘smog
the expertise and the resources to days’, which account for 2,500 prema-
place Canada in the forefront of tech- ture deaths per year in Ontario alone.
nology and innovation. [Illness Cost of Air Pollution Model,
Canadians want to see green spaces developed by the Ontario Medical
within urban regions protected for Association, June 2000]
everyone’s benefit, as well as wood-
Urban Revitalization
lands and watersheds on the outskirts
of our cities. In twenty years, there should be a
By 2020, the benefits of a National closer connection between where
Renewable Fuels Strategy should people live and where they work.
show a significant decrease in the use Older, established neighbourhoods
of non-renewable energy sources. could offer opportunities for new
There should be a shift from gasoline- housing and innovative development
powered to more efficient, less pollut- such as the remediation and redevel-
ing vehicles using bio-fuels such as opment of “brownfields” (contaminated
ethanol and bio-diesel that will reduce sites). These sites have enormous
the level of CO2 emissions. Hydrogen potential and we should be exploring
fuel cells and wind power are alterna- ways to utilise them.
tive sources of energy that deserve By 2020, there should be in place a
further research and investment. We full description of all publicly owned
should see more use of solar heating lands and buildings, federal, provin-
for homes and district energy systems cial and municipal. The inventory
should be utilised to heat and cool should include current use, as well as
large buildings. current committed uses. These lands
The rural areas and northern and buildings should be examined for
regions of Canada are an integral part opportunities and potential for urban
of Canada’s economic prosperity and development under leasing arrange-
success as a nation. The importance ments. Granville Island in Vancouver
of rural Canada within the urban is a good example of an effective and
context is as principal food and energy successful use of publicly owned
supplier. We are fortunate to enjoy urban space. This concept has the
one of the lowest costs for food in the potential to create a new and vibrant
western world. By 2020, the rural community within an urban core.
regions should have developed their It will become even more important
full potential as sustainable rural to preserve heritage buildings and
economies based on the primary historic sites in the context of sustain-
industries of agriculture, fisheries, able development. Otherwise, whole
forestry, mining and energy. Canada chapters of our shared history will be
should be a world leader in research lost forever.
and innovation in these key resource-4 CANADA’S URBAN STRATEGY: A BLUEPRINT FOR ACTION
Education and Skills Canada could be at the forefront of
In 2020, the urban economy will be information technology that
driven by knowledge-based industries researches worldwide best practices
characterized by state-of-the-art and finds innovative solutions.
urban communications technology. The Government of Canada must
By 2020, skills, training and knowl- make some firm decisions, take bold
edge will be even more crucial. initiatives and follow a course of
“A great city is one that
Currently, 40% of Canadian adults action that will lead us to attain these
buzzes with energy, one goals for sophisticated and successful
are functionally illiterate and only
that is full of innovative through Investment in life-long learn- sustainable communities by 2020.
people doing big things. ing will we meet the demands required
The city is diverse – in by industry and commerce. [“Canada
2010: Challenges and Choices at Home Nation-building involves govern-
class, income, and colour –
and Abroad”, Conference Board of ments and people working together to
and fights to maintain that secure our future and for our children
Canada, October 2002]
diversity. It has rich, living Canada should have the capacity to and grandchildren to follow. We have
culture – in all meanings develop, attract, and retain highly a collective responsibility to ensure all
of that word.” skilled workers and to become a world citizens have equal opportunities and
[“Building Up”, Vision for a leader in research, development and equal access. How we see ourselves is
Great Canadian City, reflected in our changing values and
forthcoming Cities Report innovation. We must ensure that every
Canada 25] Canadian has the opportunity for the attitudes. Our vision of Canada in
education, skills, and training to 2020 is based on a united country,
participate fully in the knowledge- where freedom, quality of life, a strong
based economy. economy and Canada’s place in the
Findings suggest that cities and world is the measure of our success.
regions have much to gain from Continuing our commitment to
making centres attractive to knowl- prudent fiscal management and sensi-
edge–based workers who prefer places ble investments, sound social
with a readily accessible range of programs, a good health care system
recreational and cultural activities. and careful attention to environmental
[“Competing in the Age of Talent: and cultural programs, the Canada of
Quality of Place and the New 2020 will have a secure foundation
Economy”, Richard Florida, and we can look forward to a bright
January 2000] future for all Canadians.CANADA’S URBAN STRATEGY: A BLUEPRINT FOR ACTION 5
Canada’s Urban Strategy:
A Blueprint for Action
sustainable as possible with the high-
T
he 2002 Speech from the Throne
recognizes that “Competitive est possible quality of life. The choices “Federal, provincial and
cities and healthy communities made today will affect the future municipal governments
are vital to our individual and national success and vibrancy of our urban should pursue enhanced
well-being. They require new partner- centres and it is critical that flexible
tri-partite agreements. Tri-
ships, a new urban strategy, a new institutions develop the strategies that
address the differences in regions. partite agreements offer a
approach to healthy communities for
the 21st century”. Implementation of Canada’s Urban mechanism for the federal,
An enhanced relationship between Strategy will establish a basis for provincial and municipal
the Government of Canada and economic sustainability for all regions governments to combine
among our urban partners, provincial of Canada. In this report, we suggest
their resources and
and municipal governments, the ways in which the Government of
Canada can act both as catalyst and expertise to build cohesive
private sector, community and busi-
ness leaders and the voluntary sector, facilitator while working with policies and programs that
will guide strategic federal capital- provinces, municipalities, community will benefit cities”.
investment in our cities and will leaders and private sector partners. [“Cities at the Crossroads”,
Addressing Intergovernmental
improve the quality of life for millions The Strategy ensures that policies and Structures for Western
regulations are assessed for efficiency Canada, Canada West
of Canadians living in our urban Foundation, August 2002]
regions. and effectiveness. Investments need to
This innovative relationship will be strategic in nature, targeted in
form the foundation for a new areas where they will be the most
approach. This is the basis of effective.
Canada’s Urban Strategy. How we These recommendations are not
move forward on these issues will meant to be definitive or exclusive but
ultimately be shaped by partnerships rather possible ways in which the
that share a vision of what is impor- Government of Canada can work
tant for our nation and its citizens. within our jurisdiction to develop a
The key to successful urban regions new relationship with all partners,
is economic sustainability combined both in urban and rural regions. By
with social cohesion. The challenge for working together, we can build our
political leaders is how to make every future prosperity and a strong country
Canadian region as economically for our children and grandchildren.6 CANADA’S URBAN STRATEGY: A BLUEPRINT FOR ACTION
KEY ELEMENTS OF CANADA’S URBAN STRATEGY
Coordination and Integration achieved on many levels and in differ-
We live in an era of policy interdepen- ent sectors. Canada’s Urban Strategy
dence where actions of one order of includes mechanisms designed to
government have an effect on other meet this objective.
governments. This is particularly true Environment Canada implemented
for large urban centres where federal, a model of integration through the
provincial, and municipal policies and Ecosystems Initiative in the manage-
programs all affect urban life. ment of the Great Lakes area, the
During our consultations, the Task Saint Lawrence River and the Georgia
Force frequently heard that federal River basin. This allows coordination
legislation and policies across a broad of all orders of government, stakehold-
range of areas linked to immigration, ers and local communities to manage
employment, health care, crime a complex system. This approach
prevention, infrastructure, could be adapted to urban regions in
transit/transportation, and the envi- areas of common interest such as the
ronment, all have a profound impact Kyoto Protocol.
on the quality of life of urban Collaboration & Consultation
Canadians. This is also true of some
Canadians also recognize that there
international agreements.
are opportunities for cooperation
Our Interim Report emphasized the
among stakeholders at all levels.
Government of Canada’s significant
Strong urban partnerships and tripar-
presence in the urban regions through
tite agreements should be developed
its programs, policies and as an
between and among all orders of
employer, land and property owner
government as well as with the private
and manager. In fiscal year 2000-
sector. Provincial and municipal lead-
2001, the Government of Canada
ers need to be involved in decisions
invested more than $55 billion in
that affect them, particularly in those
direct and indirect services and
areas of policy that have an impact on
programs.
budgets.
Coordination and cohesive strategic
Urban projects and programs
decision-making is currently lacking
should be designed to meet federal
to ensure those funds are spent in
objectives, on the basis of plans and
areas and on projects that ensure
targets developed in partnership with
maximum social, economic and envi-
provinces and municipalities.
ronmental benefits. We must ensure
that Canadians receive the highest Federal Objectives of an Urban
level of value from tax dollars. To Strategy
achieve this, the Government of The Task Force believes that for
Canada should coordinate and inte- Canada’s Urban Strategy to succeed,
grate those federal programs and programs and projects should adhere
activities that are of key importance to established federal objectives that
for urban regions. This can beKEY ELEMENTS OF CANADA’S URBAN STRATEGY 7
will advance urban revitalization. The centre(s) would collect, coordi-
Projects and programs should demon- nate and distribute research from
strate they have the capacity to: Canada and around the world on
■ Conform with Government of issues related to urban development
Canada standards in fiscal that could include:
accountability; ■ Conditions and current trends in
■ Enhance and improve the quality of urban regions;
life for all Canadians; ■ Promoting Canadian successes and
■ Meet our social obligations in innovative programs abroad;
health care, housing, employment ■ Comparing the competitive position
and pensions; of urban regions within the global
■ Contribute to sustainable develop- market;
ment in transit/transportation, ■ Sharing international practices and
infrastructure, and housing; experiences related to urban devel-
■ Enhance Canada’s image as a world opment; and
leader in sustainable urban devel- ■ The provision of urban data to key
opment and technology; stakeholders developing urban poli-
■ Increase urban regions’ ability to cies and programs.
attract and retain talent; In addition, the Government of
■ Adhere to environmental and land Canada should develop a communica-
use standards; and tions plan to make its urban policies
■ Assist Canada to comply with inter- accessible and available. This infor-
national agreements. mation will help guide national deci-
sion-making and encourage comments
Best Practices & Research
and suggestions from Canadians.
The Government of Canada should
foster research on national and inter-
national best practices and provide
intelligence on trends and conditions
in our urban regions. The Task Force
suggests this could be synchronized
by an Institute of Urban Research or
within a network of research chairs at
Canadian universities and could be
coordinated by the Government of
Canada.8 CANADA’S URBAN STRATEGY: A BLUEPRINT FOR ACTION
Implementing Canada’s
Urban Strategy
that urban concerns and priorities
F
or Canada’s Urban Strategy to
be effective, the Task Force are considered through an “Urban
recommends a designated Lens”;
Minister be given the responsibility to ■ Consult with the Secretary of State
coordinate the Government of (Rural Development) and the Rural
Canada’s efforts in urban regions and Secretariat on urban issues that
to provide a “voice” for the urban may have an impact on rural
regions in Cabinet. The mechanisms Canada;
we recommend to implement ■ Establish an external Advisory Body
Canada’s Urban Strategy stress to advise the Minister on urban
strong political leadership from the policies, comprising academics,
Government of Canada and require an urban experts from NGO’s and
understanding that enhanced rela- national organizations, such as:
tionships will promote cooperation, Federation of Canadian
better decision–making and more Municipalities, National Roundtable
effective consultation. on the Environment and the
The responsibilities of the desig- Economy, Boards of Trade,
nated Minister could include the Conference Board of Canada,
following initiatives: Canadian Urban Transit
■ Collaborate with all orders of Association, Canadian Urban
government and urban partners to Institute, The Transportation
ensure key programs and policies Association of Canada, Canadian
are effective, efficient and strategic Policy Research Networks, and the
and reach those urban areas where Canada West Foundation;
they will have the most benefit; ■ Chair a National Urban Summit
■ Act as a catalyst to promote growth with provincial First Ministers
and development in economic, responsible for Urban Affairs, and
social, environmental, key urban partners and facilitate
transit/transportation and cultural other urban conferences; and
matters; ■ Assist in developing the criteria for
■ Promote and synthesize research the three national programs, hous-
and intelligence-gathering on “best ing, transit, and infrastructure, in
practices” in urban regions/cities – cooperation with the Ministers
nationally and internationally- with responsible ensuring that the prior-
government departments that have ities and approaches of key urban
an impact in urban regions; centres are taken into account in
■ Liaise with departments within a the design of these programs.
coordinated framework to ensureIMPLEMENTING CANADA’S URBAN STRATEGY 9
Canada’s Urban Strategy will provide Members of Parliament are part of
opportunities to: that action. Given their unique
■ Increase the visibility and credibility perspective and knowledge of their
of the Government of Canada on own Ridings, as well as the depth of
urban issues and in urban regions; experience in urban issues among our
■ Build on the current federal pres- Caucus, it is imperative MP’s be
ence and investments in urban consulted and included as part of the
“Good government is one
regions and ensure those invest- decision-making process that affects
ments are prudent and effective; their constituents. They should be of the founding principles
■ Explore fiscal avenues with urban invited to attend conferences with of our constitution. Each
regions; federal, provincial and municipal nation, each region and
■ Provide an access point for urban leaders. each community has a
regions; and
mission to balance the
■ Meet federal targets in the three
national programs; infrastructure, These suggested mechanisms for values of its local
housing and transit. implementing Canada’s Urban stakeholders and deliver
Strategy are the key components for the best services to ensure
Implementing Canada’s Urban
bold, political leadership that is neces- the best quality of life. The
Strategy: the Role of
Parliamentarians sary for a relationship with our part-
job of finding the perfect
ners to ensure urban regions have the
Urban problems and challenges balance, that’s Great
economic and social foundation for
require locally-made solutions.
the 21st Century. government.”
Canada’s Urban Strategy is the [Rienk de Vries, Managing
federal government’s approach to Director, EMA Canada,
Centre for Municipal Value,
collaborate with all urban partners to Toronto, 2002]
seek solutions.10 CANADA’S URBAN STRATEGY: A BLUEPRINT FOR ACTION
Three Priority Programs
Investing in the three pillars of
T
he Interim Report of the Task
Force on Urban Issues proposed Canada’s Urban Strategy; housing,
three priority programs as the transit and infrastructure, will reduce
“When our urban centres major pillars of Canada’s Urban pressures on municipalities for these
are doing well, all Strategy. These three national large capital expenditures.
governments benefit from programs will form the foundation for The Government of Canada’s
urban revitalization and provide the approach will not be to micro-manage
the increased revenues and
basis for sustainable long-term fund- individual projects, but to set direc-
fiscal flexibility to pursue tions and objectives and provide the
ing for major projects:
public policy priorities”. resources to achieve them. Spending
■ Affordable Housing
[Toronto Board of Trade, on projects and programs should only
pre-budget submission to the ■ Transit/Transportation
federal government, be in accordance with regional plans
November 2001] ■ Sustainable Infrastructure and targets developed by, and in part-
nership with, provinces and munici-
It is clear, there needs to be a new palities, and designed to meet federal
fiscal arrangement for municipalities objectives. Such plans should
to ensure sustainability is a main consider regional situations and
component in any type of funding for include clear performance measures
multi-year planning. and criteria for evaluation.THREE PRIORITY PROGRAMS 11 A NATIONAL AFFORDABLE HOUSING PROGRAM Recommendation from the Interim Report Establish a National Affordable Housing program that will strengthen the mandate of Canada Mortgage and Housing Corporation to develop a National Affordable Housing Program in collaboration with all orders of government and housing providers. The Task Force is pleased that in the particularly affects the working poor 2002 Throne Speech, the Government and low-to-middle income earners. of Canada recognized the need for Every day, hundreds more families more investment in affordable hous- face eviction and homelessness. ing; “it will extend its investments in [CMHC, Annual Rental Survey, affordable housing for those whose November 2001] needs are greatest, particularly in All thriving urban regions need those Canadian cities where the sufficient affordable housing for all problem is most acute”. levels of income including the working This commitment will assist those poor. We must ensure sufficient urban communities with serious housing housing for immigrants coming to our problems. cities and for large numbers of people Our Interim Report highlighted who make our urban regions the housing needs in urban regions and dynamic places they are now and will described the lack of affordable hous- be in the future. ing and homelessness as one of the During its consultations, the Task social and economic effects of growth Force heard from many provinces that in Canada’s major centres. have not had significant construction During our consultations, we of new rental housing for over two learned of many examples of success- decades as a result of discouraging ful and innovative projects built with tax rules instituted in the early both private and public partnerships. 1970's. As well, CMHC withdrew from We heard from regions where the building social housing. It was also housing shortage is critical and will suggested that rent control regimes only get worse without a large infusion and inequitable taxation by provincial of capital and creative thinking on the and municipal governments exacer- part of all orders of government. bated this situation. We recognize that With a low national vacancy rate, all governments must work together to the country’s largest urban centres resolve a serious shortage of afford- are losing affordable rental units at an able housing in our major urban alarming rate. Canada Mortgage and centres. No single government can Housing Corporation’s annual rental resolve this situation alone. market survey shows rents also The private sector should also be increasing, creating less available and part of the solution. In the report of affordable low-cost rental housing in the Rental Working Group for the City the larger urban areas. This situation of Toronto, urban developers and
12 CANADA’S URBAN STRATEGY: A BLUEPRINT FOR ACTION
others in the industry throughout more public/private partnerships in
Canada, expressed their ideas on the affordable housing market.
fiscal incentives for rental housing. The $680 million federal Affordable
They stated that they are willing to Housing Program, announced in
build new classes of affordable Budget 2001, is a good start but is
housing if conditions, such as equal just not sufficient to meet the needs
tax treatment, are made favourable. across the country.
[“Unlocking the Opportunity for New This program, and the commitment
Rental Housing: A Call to Action”, City announced in the 2002 Throne
of Toronto, June 2001]. Speech, should form the basis for a
In response to our recommenda- long-term National Affordable Housing
tions in the Interim Report, CMHC, Program that will provide an effective
together with the Chair of the Task and more sustainable means of
Force and the Parliamentary increasing the supply of affordable
Secretary to the Minister responsible housing.
for CMHC, will host a National Housing not only means providing
Housing Forum to focus on private new affordable units. It also means
sector opportunities. Representatives exploring concepts such as redevelop-
from the building and development ment of brownfields and controlling
industry, as well as financial and development patterns – both will
business leaders, will explore ways to influence transportation, environmen-
overcome obstacles that might lead to tal and social infrastructure patterns.
The Task Force recommends the Government of Canada commit to a
National Affordable Housing Program that should include:
■ A Cabinet review of CMHC’s mandate to allow more flexible arrangements
with housing providers, non-profit corporations, the volunteer sector and other
orders of government to seek creative and flexible solutions in regions where
there are pressures;
■ Changes to CMHC mortgage insurance to allow greater flexibility;
■ Opportunities for exploring partnerships with private and corporate pension
funds such as the Ontario Municipal Employees Retirement System;
■ Reinvesting a portion of CMHC insurance profits into grants against the cost of
CMHC mortgage insurance to assist non-profit housing groups; and
■ Recognition and promotion of building methods that go towards meeting
targets on greenhouse gas emissions, and encouraging the use of Canadian-
made environmentally “green” building materials and construction methods.THREE PRIORITY PROGRAMS 13
The Task Force recommends the Government of Canada:
■ Consider financing initiatives that include:
– Accelerated depreciation on rental properties;
– Defer capital gains and capital cost allowance on the sale of rental property
when the proceeds are reinvested as affordable housing units (rollovers); “A national affordable
– Revise the rate and method used to calculate capital-cost allowance (CCA) housing program must be
against any losses and restore pooling provisions;
put in place for seniors
– Expand the definition of ‘soft costs’ for the first year of operations to allow
and the working poor. We
investors the ability to deduct these from new rental properties;
– Change capital gains tax to encourage redevelopment of underused and need to overcome the
derelict urban properties and lands; attitude of not wanting
– A housing tax-credit program that recognizes some private investors and low income housing in our
owners may take a loss of revenue on the low-income rental market; and neighbourhoods”.
– Tax incentive programs similar to the U.S. (e.g. Low Income Housing Tax [Report from public consulta-
tion meeting, Moncton, New
Credit) as well as other housing subsidy programs. Brunswick, September 2002]
Tax changes are crucial to create incentives for more and enhanced public/private
partnerships. The role of government is essential to support lower income earners,
particularly those who are paying more than 30% of their net income on rent.
[CMHC target]
The Task Force recommends the Government of Canada:
■ Consider targetting initiatives in urban areas that include:
– Renewing the Residential Rehabilitation Assistance Program (RRAP) due to
expire in March 31, 2003-for at least a further 3 years. Both the RRAP and
Supporting Communities Partnership Initiative Program (SCPI) have been
well received and are excellent examples of successful bi-partite
partnerships between federal and municipal governments and individual
homeowners;
– Incorporating a degree of flexibility into the RRAP program to include
consideration of the value of the home as well as the income level of the
owners;
– Linking housing targets to policies through an “urban lens” as a direct
impact of federal legislation. The Urban Aboriginal Strategy could be used
as a model for interdepartmental groupings;
– Giving special consideration to the critical need for housing among the
urban aboriginal community and senior population;
– Providing targeted mortgage insurance for brownfield redevelopment and
revitalization in areas where there is a shortage of affordable housing; and
– Offering grants to non-profit housing groups to support the restoration and
conversion of heritage properties to affordable housing.14 CANADA’S URBAN STRATEGY: A BLUEPRINT FOR ACTION
A NATIONAL TRANSIT/TRANSPORTATION PROGRAM
Recommendations from the Interim Report
Establish a National Transportation Program that would:
■ Provide long-term sustainable funding for public transportation systems;
■ Invest strategically in integrated multi-modal transportation systems;
■ Invest in high-speed rail service to connect major centres; and
■ Ensure that unused railway rights-of-way and corridors are preserved and made available at net
salvage value or at no cost for future transit or be developed into recreational trails.
In our Interim Report we recom- country over the next five years. CUTA
mended a National Transportation also estimates that “current transit
Program and we repeat this in our budgets can only meet $6.8 billion of
final report. A healthy, sustainable the total needs. Without new and
transportation network is vital to the creative funding sources, insufficient
success of urban regions. capital investment will place pressure
We congratulate the government for on current operating budgets, increase
its announced intention to set up a life-cycle costs, limit access to services,
10-year Infrastructure Program that and have a negative impact on the
includes a component for a strategy environment”. [CUTA, Partnership in
for a transportation system: “Within Urban Transit, Submission to the
this framework, it will introduce a new House of Commons Standing
strategy for a safe, efficient and envi- Committee on Finance, September
ronmentally responsible transportation 2002]
system that will help reduce congestion There is no doubt that our roads
in our cities and bottlenecks in our are congested, air quality is deterio-
trade corridors”. [Speech from the rating and low-density sprawl is
Throne, 2002] encroaching on the countryside.
This is an important step towards Traffic congestion is increasingly
the recognition of urban transit as an becoming an economic burden and an
area of long-term national investment. environmental threat. The costs of
The Canadian Urban Transit driving continue to increase. It is
Association (CUTA) estimates that estimated that gridlock costs the
$13.6 billion is required to meet tran- Greater Toronto Region alone,
sit infrastructure needs across the $2 billion annually in lost produc-
Currently, the Government of Canada has several transportation related programs:
Strategic Highways Infrastructure Program $ 600 Million 2002 – 2007
Border Infrastructure Fund $ 600 Million 2002 – 2007
Canada Strategic Infrastructure Fund includes: Total allocation for the
1. Highways and Railway Infrastructure Fund – all five categories 2002 –
2. Local Transportation Infrastructure $ 2 BillionTHREE PRIORITY PROGRAMS 15
tivity. [Toronto Board of Trade: components, and minimizes the use
Presentation to the Ontario Standing of land and the production of noise.
Committee on Finance and Economic [The Centre for Sustainable
Affairs, February 2001] Transportation, September 1997]
To build world-class, competitive The Task Force firmly believes that
urban regions, all orders of govern- this definition forms a solid base of
ment must invest in multi-modal objectives for a national Transit/
“Transportation is critical
transit systems. Canada is the only Transportation Program.
G-7 country without a national transit The Task Force wants to see an to Canada’s trade-
investment program. Keeping pace increased emphasis on multi-modal dependent economy. About
with demand will require a commit- transit to integrate regions where one-half of our economy –
ment to transit infrastructure from all Canadians live, work and play and to from agriculture to
orders of government. connect the rural areas with the
manufacturing to tourism –
urban core. This includes improved
Strategic Objectives for passenger and freight rail-links, inter- depends on
Responding to the Challenges transportation”.
modal systems to connect rail, road,
and Realizing the Vision [“The importance of
air and sea, as well as regional transit
Revitalizing Canada’s
The broad objective for a National systems such as Ontario’s GO Train Transportation Infrastructure”,
Transportation/Transit Program is to services.
Western Transportation
Advisory Council, July 2002.]
facilitate implementation of sustain- Investments in rail networks will
able transportation defined by the involve improvements to railway infra-
Centre for Sustainable Transportation structure such as grade separation.
as a system that: This is an important issue for the
■ Allows the basic needs of individu- safety of residents where railroads
als to be met safely and in a pass through residential areas.
manner consistent with human and An efficient, fast rail system linking
ecosystem health, and with equity all parts of Canada will reduce
within and between generations; congestion in the urban centres, and
■ Is affordable, operates efficiently, promote commuter and passenger
offers a choice of transport mode, rail as an alternative mode of
and supports a vibrant economy; transportation.
■ Limits emissions and waste within Consumer or “user fees” are gaining
the planet’s ability to absorb them, acceptance as a means by which
minimizes consumption of non- provincial and regional governments
renewable resources, limits can raise much needed cash without
consumption of renewable raising taxes. These fees also have the
resources to the sustainable level of potential to change behavioural
yield, reuses and recycles its patterns.16 CANADA’S URBAN STRATEGY: A BLUEPRINT FOR ACTION
The Task Force recommends the Government of Canada commit to a
National Transit/Transportation Program that will:
■ Consolidate current federal transit/transportation programs into a National
Transit/Transportation Program;
■ Create further tax incentives to aid the construction and use of public transit;
■ Amend the Income Tax Act to permit employers to provide transit benefits to
employees on an income tax exempt status. A personal income tax exemption
gives employers the incentive to offer transit benefits to their employees. This
in turn, motivates drivers to use public transit;
■ Encourage the expansion of the ‘Ecopass’ and ‘Passe Partout’ Programs,
currently a federal pilot program in the National Capital Region, to other
federal employees to allow payroll deductions for the purchase of transit
passes;
■ Treat employer-provided free parking in large urban centres as a taxable
benefit where there is readily accessible public transit. Taxes collected under
this method should be dedicated to transit programs;
■ Consider tax incentives to Canadian companies that implement traffic
reduction programs such as shuttle services from main transit intersections to
places of work; and
■ Invest in a high-speed inter-city rail network with upgraded railway
infrastructure, including grade separations and traffic control systems.
A National Transit/Transportation Program will have specific criteria, performance
measures, rigorous evaluation and monitoring of all projects funded under this
program.THREE PRIORITY PROGRAMS 17
A NATIONAL SUSTAINABLE INFRASTRUCTURE PROGRAM
Recommendation from the Interim Report
Establish a long-term National Infrastructure Program that will build on current programs to provide
stable, reliable funding (i.e. 15 years)
In our Interim Report, the Task Force structure is critical to the quality of
recommended a long term National life and everyday function of our
Infrastructure Program. We congratu- cities. It is the foundation for
late the government for its announced economic growth and development.
intention to set up a new 10-year We heard that many municipal
infrastructure program: “working with governments are unable to meet the
provinces and municipalities, the demand. At the same time they
government will put in place a ten-year are constrained by their inability to
program for infrastructure to accommo- finance large projects through
date long-term strategic initiatives property taxes.
essential to competitiveness and The need is greatest in the largest
sustainable growth”. [Speech from the urban regions where the demand for
Throne, 2002] infrastructure like highways, trans-
This is a continuation and an portation systems, airports, bridges,
extension of an agenda that began in water and sewage treatment plants
1993 to assist provinces and and housing are paramount. This is
municipalities with the high costs of where urban revitalization is also a
infrastructure. key area of investment. The
The table below provides a Federation of Canadian Municipalities
summary of the infrastructure initia- estimates a $44 billion shortfall in
tives and programs of the Government infrastructure funding across Canada.
of Canada since 2000. [Federation of Canadian Municipalities:
In the Interim Report, the Task Early Warning: Will Canadian Cities
Force showed how sustainable infra- Compete? 2001]
Infrastructure Programs / Initiatives
Name Funding Funding Period
Physical Infrastructure Initiative
Infrastructure Canada $ 2.05 B 2000 – 2007
Strategic Highways Infrastructure Program $ 600 M 2002 – 2007
Canada Strategic Infrastructure Fund $ 2.0 B min 2002 –
Border Infrastructure Fund $ 600 M 2002 – 2007
$ 250 M
FCM “Green” Funds 2000 –
(endowments)
Affordable Housing Program $ 680 M 2002 – 2007
Cultural Spaces Canada Program $ 80 M 2001 – 200418 CANADA’S URBAN STRATEGY: A BLUEPRINT FOR ACTION
The Task Force recognizes that urban planning from a fiscal perspec-
large and long-term projects take time tive. Such questions include: Is taxing
to plan. Provinces and municipalities & spending in cities adversely affect-
need a farsighted long-term approach ing the urban environment? In some
that allows for changes in budgets, instances, fiscal measures work
time-frames, land use planning, and against ‘greenfields’ and ‘brownfields’
priorities. or the regeneration of the urban core.
“A new deal for cities
Decisions on major projects in A long-term infrastructure program
should be a new deal for urban regions such as transit, infra- will allow the Government of Canada
Canada’s urban regions, structure and housing are shaped by an opportunity to show leadership on
not a ‘bail-out’ for existing costs, pricing, taxation and the poli- urban sustainability and urban revi-
municipalities. We must cies of other governments. Basic ques- talization, not only through its own
tions such as where to build roads, practices and policies but also by
begin to view funding
transit stations, libraries and schools, engaging the broader community and
transit and infrastructure etc. are governed in large part by other orders of government in projects
on a regional basis rather capital, operational and maintenance that meet specific targets of environ-
than simply funding costs. mental and fiscal sustainability.
separate municipal Ground-breaking research is The 2002 Throne Speech acknowl-
currently being undertaken by the edges the importance of infrastructure
governments.”
National Roundtable on the as key to the prosperity of our cities
[“Cities in the New Canada”,
prepared for TD Forum on Environment and the Economy into and the health of our communities.
Canada’s Standard of Living, by
Joe Berridge, Urban Strategies fiscal objectives for sustainability We must invest wisely and strategi-
Inc. October 2002] through ecological fiscal reform. cally and make the right choices to
The National Round Table on the ensure urban infrastructure is
Environment and the Economy is sustainable for future economic and
exploring various measures that affect social success.You can also read
