NURTURING NEIGHBOURHOODS PILOT PROJECT TERMS OF REFERENCE
Prepared By: Ken Johnson, Parks and Recreation Nurturing and Department Neighbourhoods Working Group June 17, 1992
TABLE OF CONTENTS
PAGE 1.
Nurturing Neighbourhoods - A Chronology of Events
1
2.
Shift in the Corporate Value System
2
3.
Approach: Nurturing Neighbourhoods Pilot Project
4
4.
Expected Results
5
5.
Project Organization/Roles
7
6.
Pilot Project Area Selection
8
7.
Pilot Project Evaluation
10
8.
Pilot Project Timeframe and Budget
10
Appendix A:
Excerpt from Council Minutes, February 26, 1991 re: City of Edmonton Corporate Response to the Cultural Futures Project.
Appendix B:
Nurturing Neighbourhoods Working Group.
Appendix C:
"Community Breakdown - A Key Issue for the City of Edmonton", May, 1992.
NURTURING NEIGHBOURHOODS PILOT PROJECT TERMS OF REFERENCE 1. NURTURING NEIGHBOURHOODS - A CHRONOLOGY OF EVENTS 1988 The Parks, Recreation and Cultural Advisory Board undertook the Cultural Futures Project in 1988 in an effort to formulate a long term cultural policy for the City of Edmonton. An extensive public participation process was conducted, involving over 100 citizens representing a wide range of groups active in the cultural life of Edmonton. 1989 A report entitled "Edmonton: A City for the 21st Century - Report of the Cultural Futures Project" was submitted to Council in The report contained a broad definition of September, 1989. culture and proposed 10 initiatives for the City's cultural development. The Nurturing Neighbourhoods Initiative was described in the executive summary (pg 2) of this report as follows: "6.3 Living in and being part of a NURTURING NEIGHBOURHOOD where the residents participate in identifying their needs and deciding how those needs will be met, will contribute to the health and well-being of both the individuals and the community. A pilot project in one neighbourhood or cluster of neighbourhoods is proposed as a way of demonstrating the concept of partnerships required between citizens and Residents of the civic government departments. neighbourhood will be invited to address the full range of human needs as they pertain to the individuals and groups of that neighbourhood -- social, economic, cultural, educational, health, civic, etc." 1990 During 1990 the administration carried out an extensive corporate review of the report findings, involving input from 15 City departments and boards as well as affected external agencies. Through the corporate review the Nurturing Neighbourhoods Initiative emerged as the highest priority for implementation. 1991 City Council approved the concept and a general "Action Plan" in February, 1991 (see Appendix A) and directed the administration to prepare a detailed Terms of Reference to implement a pilot project.
1992 Staff resources were assigned in February, 1992 and a Working Group The Working Group is comprised of a citizen was formed. representative and staff from Community and Family Services, Board of Health, Library, Parks and Recreation, Planning and Development, Police Service and Transportation (see Appendix B). This group will be involved in the process of preparing the Terms of Reference and in the initiation of the pilot project. 2. SHIFT IN THE CORPORATE VALUE SYSTEM The-Nurturing Neighbourhoods Initiative was developed in response to an expressed concern about a "declining sense of community" It arose out of a discussion of amongst Edmonton citizens. cultural life in Edmonton where the neighbourhood of the future was described as follows: "Neighbourhoods become places where neighbours care for each other, and share their knowledge and talents. Citizens meet regularly to identify and debate neighbourhood issues and ideas, particularly civic, Through health, social, cultural, and educational. dialogue and collaboration, residents and professional staff work in partnership to ensure optimum use of resources to provide needed services."1 In order for the Nurturing Neighbourhoods concept to become a reality throughout the City, a fundamental shift in the corporate value system will have to take place. Progress is being made in this regard, as the City Manager and General Managers are currently in the process of developing a "core value" for the Corporation that would facilitate the Corporation working cohesively to prevent what has been described a "community breakdown - a key issue for the City of Edmonton"2
1
"The City of Edmonton Cultural Futures Project Overview Booklet", October 1988, p 10.
2
The paper "Community Breakdown - A Key Issue for the City of Edmonton" prepared for the City Manager in May, 1992 presents the case for the shift in the overall corporate value system. The paper is appended to this Terms of Reference (Appendix C).
- 3 With the adoption of this core value, more City resources would be directed to bottom-up, community based processes. The role of City staff would shift from being "managers of services" to being facilitators, collaborators in seeking resources and imaginative solutions with the community. This approach has the potential of generating more meaningful and cost effective solutions by investing in the capacities of the individual, community based groups and social networks. The Nurturing Neighbourhoods concept envisages a new community based process for planning and delivering services for neighbourhoods throughout the City where: •
neighbourhood residents work with staff proactively in: - deciding what their needs are - deciding how to meet their needs - working in partnerships to resolve issues and create opportunities
•
City and agency staff emphasize: - responsiveness, flexibility - coordination of effort and resources at the neighbourhood level - collaboration with each other and the community to develop creative, holistic improvements - encouraging, supporting local initiatives
Under the Nurturing Neighbourhoods concept the emphasis would shift from a traditional service system where the focus is strictly on the formal service delivery system to a community based system where the focus is on the range of key sectors in the community.3 The four key sectors conceptualized in the community based system are: a) b) c) d)
the formal service delivery departments/agencies neighbourhood residents informal social networks, self help groups informal and formal community groups
3
The Canadian Mental Health Association's shift from a traditional to a community based system as described in the March, 1992 issue of Canada's Mental Health, pages 25 - 29, is used as a model for this description.
- 4 As the diagram below illustrates, the individual in the community is the central figure in this community based system. THE COMMUNITY RESOURCE BANK
INDIVIDUAL SELF HELP
INFORMAL SOCIAL NETWORKS AND SELF HELP GROUPS
PERSON
INFORMAL AND FORMAL COMMUNITY GROUPS
TRADITIONAL SERVICE DELIVERY SYSTEM
The Nurturing Neighbourhoods Pilot Project would be only one component of an overall shift in policy within the corporation. It is a key component however, as it will demonstrate how to implement such a corporate value change at the local, neighbourhood level. 3. APPROACH: NURTURING NEIGHBOURHOODS PILOT PROJECT A proactive, holistic community development approach will be taken to nurturing the neighbourhoods involved in the pilot project. Intensive involvement in the pilot project area will be for a three to five year period, with the exact timeframe dependent upon the community driven process and upon agreement between the community and corporate staff. Actions ranging from incremental short term to comprehensive long term could be taken in the areas of social services, crime prevention, recreation, health, culture, heritage preservation, housing, economic opportunities, community development corporation initiatives, physical improvement/beautification and environmental quality.
- 5 Through the provision of resources, information and skill development, the aim is to strengthen the social support network of the neighbourhoods. The project will build on and support existing successful services, informal systems, projects, activities and coalitions in the area. It will involve facilitating and empowering community organizations and: strengthening connections, coalitions, partnerships identifying gaps in services and suggesting or facilitating solutions assisting with existing projects, and helping to initiate locally controlled community projects The scope of the project will encompass human services, community development, economic development and physical improvements (physical improvements as a means to achieve social goals). The community will determine which aspects require the most attention. Some of the principles of a community development approach are: ...people have the right to be involved in decisions that affect their lives; stakeholder groups should be involved in the change process; people have the capacity to make good decisions if they are given the necessary skills and knowledge; and, community projects must be locally controlled. The roles of community development practitioners or organizations include those of educator, facilitator, organizer and researcher. Some of the functions of a community development body would be a central clearing house, analysis of trends/research/need, advocacy, (voice and awareness), promotion of collaborative activities, and facilitation of the development of a shared vision for the community" .4 4. EXPECTED RESULTS The expected results or benefits from the pilot project relate to the two major objectives of the pilot: an improved, nurturing cluster of neighbourhoods and, a model for a collaborative community based approach.
4
excerpts from a Community Development discussion paper prepared for a community development workshop held in Calgary in November, 1991.
The expected results as described by participants in the Cultural Futures Project and by City staff are presented below: a) A Nurturing Neighbourhood the social support network of the community is strengthened eg. more self help groups, informal social networks. -
residents are more aware of the decision making process and a variety of mechanisms and entry points to access information, resources and professional skills of City departments and agencies.
-
residents have a large degree of control in community decision making and problem solving and they believe that they can make a difference. They feel a sense of duty to get involved in local civic issues.
-
there is improvement in trust, credibility, sense of partnership and support between the community and City staff.
-
residents feel a sense of community unity, pride and caring.
-
residents themselves become facilitators of community action where possible - a sustainable partnership between the community and the City is formed.
-
there are measurable improvements to the Quality of Life within the neighbourhoods which correspond to the needs initially identified (includes physical and social).
b) A Model for Collaborative City Approach -
field staff have the authority to effect positive change in the community and are strongly supported by senior management eg. community based policing model. the project demonstrates flexible, effective means by which City staff, community leaders and agencies can facilitate local involvement in community change.
-
the project leads to definitive changes in civic policy and practices relating to work with neighbourhoods and collaborative work between departments. the project demonstrates the value of departments using a holistic approach (common information bases, etc.) and collaboration to resolve issues and create opportunities. decentralized service delivery is more effective, services are seen as resources of the community.
- 7 -
each department has an increased awareness of other City department staff, resources, functions, etc.
-
the project provides the opportunity for community participants, staff and City Council to evaluate the value of the alternative approach.
5.
PROJECT ORGANIZATION/ROLES
The roles and responsibilities of the main participants in the pilot project are described below: a)„Neighbourhood Residents Neighbourhood residents will be involved in identifying needs and will participate in solution building through an ongoing, open consultative public process. Special efforts will be made to involve people who do not currently participate in community activities. b) Informal and Formal Community Groups Informal and formal community groups will be involved throughout Groups may include Community Leagues, business the process. groups, religious organizations, parent/school associations, Area Councils and any other special interest groups. New groups may be formed through the identification of issues and processes. c) City and Agency Project Staff Project staff will be involved in a collaborative process where the management control role could change at different times during the The structure of the pilot project team, including process. project leadership, will evolve based on community needs and the process - it will start with field staff talking to each other and It will evolve from staff developing an the community. understanding of each others' complementary roles and responsibilities. The pilot project will be staffed from existing resources. The project must involve the existing personnel in the area and the existing line department system in order to test and demonstrate the core value shift toward the community based model. All agencies, school boards and provincial and federal departments operating in the pilot project area will be involved in the process. Where departments or agencies have field staff working in the area, these field staff would designate a percentage of their time to the project. Departments which do not have field staff working in the area would assign staff to the project.
- 8 The roles of the various staff members will evolve and change throughout the process, depending upon neighbourhood needs and personnel skills. Within the group of staff assigned there may need to be a smaller core of people which undertakes the detailed research, report writing and community process work - although all departments will be involved to the extent necessary. There will be different phases in the project with different levels of intensive involvement by the various departments. Staff working on the pilot would have the authority to tap other resources in their own department and in other departments; there would need to be prompt response when these resources are tapped for the program to work. In this way the resources applied would be very responsive, flexible, adaptive - determined by the needs resulting from the community process. There should be consistency/continuity in staff's involvement in the pilot so the community can get to know staff and can rely on Stability in terms of them for the duration of the pilot. community interface is of critical importance. Funding will have to be allocated for hiring special resource people for the pilot project - the need for these resource people will be determined through the community process. They might be required for special projects requiring intensive short term work or specialist work to supplement existing staff skills. d) City Council City Council will review the progress of the corporate value shift and the pilot project at strategic points and ultimately decide if and how to extend the process to other areas of the City. Council will approve the Terms of Reference and budget for the project, as annual budgetary requirements are established. 6. PILOT PROJECT AREA SELECTION a)
Selection Criteria The area selected for the pilot project need not be an area with the worst problems and the greatest socioeconomic need but it should have a good mix of issues, opportunities and competing interests in order for the pilot to demonstrate the value of the holistic, collaborative approach. Many of the criteria being used to select the pilot project area relate to the readiness of the community and field staff to become intensively involved in such a community based process.
Selection criteria for the Nurturing Neighbourhoods project area are: -
community readiness: existing identifiable community based groups, networks, communication vehicles; willingness of the community leaders to be involved in this process.
-
agency/department readiness but not an overly strong current practice of being too "agency driven".
-
communities which represent diversity in housing, cultures, socioeconomic makeup etc. communities which are diverse in land use and issues business, residential, industrial, etc. Communities which have a good mix of competing interests.
b)
-
communities which have some problems, some health - a good cross section. Indicators used to measure the health of the community included factors relating to socioeconomic conditions, public safety, community involvement, housing and community quality.
-
communities which have experienced some degree of demographic change and rejuvenation.
Selection Process The corporate strategy for selecting the pilot project area involved each department on the Working Group ranking neighbourhoods based on the criteria and collaborating on these rankings to select a suitable cluster of neighbourhoods. Two clusters of neighbourhoods received a high ranking by a majority of departments on the Working Group; the clusters focused around the neighbourhoods of: -
Alberta Avenue, Eastwood Idylwylde, Holyrood, Bonnie Doon, Strathearn, Kenilworth
(Note: The Working Group is currently in the process of reviewing materials related to these clusters. It is expected that the Working Group will recommend a cluster of neighbourhoods for selection by the time the Terms of Reference is ready to be submitted to City Council for approval). The communities selected will be asked informally whether or not they would be interested in being involved in the pilot project. Once City Council approves the Terms of Reference, a formal invitation will be made to the communities selected.
- 10 -
7.
PILOT PROJECT EVALUATION
The pilot project will be evaluated to determine if and how to apply the Nurturing Neighbourhoods approach to other areas of the City. The evaluation is an extremely important component of the pilot project. It will be designed at the outset and will address both process and product results. The community's objectives for the project as well as the corporation's objectives will be used as the basis for the evaluation. Meaf:urement criteria to evaluate the success of the project will be defined through the community process and will be based on existing available data regarding the pilot project area. It will be a participatory evaluation involving the community, project staff and management of departments and agencies involved. The evaluation will be formative in that it will adapt to the process as it matures and will include an evaluation of the dynamics of the participants in the process - how people perceive each other and how this changes over time. 8.
PILOT PROJECT TIMEFRANE AND BUDGET
a) Timeframe There will not be a definitive timeframe for the community based process since the process will be community driven and since the intent of the project is to foster an ongoing community process. However, the commitment by the Corporation to involve staff intensively in the pilot project area and to evaluate the process model will be for a three year period, with a review conducted during the three year period to determine whether or not the timeframe should be extended. The evaluation will involve annual or semi-annual reports over this three year period and there will be a further evaluation conducted two years after the initial three year period to assess whether or not a sustainable partnership has occurred over that period of time.
b) Budget Staffing costs for the pilot project will be borne by the participating departments as staff would be assigned/seconded to the project. Operational costs related to the project office, communications and the citizen participation process will be budgeted for and designated in participating department budgets. Budgeting of funds required for special resource people (discussed in section 5 (c)) will be determined on an annual basis, dependent upon the community based process developed. A preliminary estimate of funds required for the Evaluation Consultant is $95,000 over a five year period. The cost breakdown will be $25,000 per year for the first three years and $20,000 for the evaluation at the five year mark. Budgeting for this work will be borne by the seven
participating departments and agencies through a collaborative process.
Appendix A
The Committee of the Whole rose and Mayor Reimer, as Chair, reported consideration of Executive Committee Reports 63, 64 and 64A, recommending adoption as dealt with. MOVED Alderman Kozak - White That Executive Committee Reports 63, 64 and 64A be adopted as dealt with. FOR THE MOTION:
ABSENT:
Mayor Reimer, Aldermen Bethel, Binder, Campbell, Hayter, Kozak, Mackenzie, Mason, McKay, Paull, White. Aldermen Chichak, Staroszik.
CARRIED
MOVED Alderman Kozak - Bethel That Council resolve into Committee of the Whole to consider Public Affairs Committee Report 25. FOR THE MOTION:
ABSENT:
Mayor Reimer, Aldermen Bethel, Binder, Campbell, Hayter, Kozak, Mackenzie, Mason, McKay, Paull, White. Aldermen Chichak, Staroszik.
CARRIED
Alderman Staroszik re-entered Council Chambers. 0.2.
PUBLIC AFFAIRS COMMITTEE REPORT 25.
Council resolved into Committee of the Whole to consider Public Affairs Committee Report 25 with Alderman Hayter in the Chair. 1.
City of Edmonton Corporate Response to the Cultural Futures Project.
YOUR COMMITTEE REPORTS: That it has considered a report, prepared by the Parks and Recreation Department, dated February 1, 1991, and heard from the Administration. Recommendations I, 2, 3, 4 and 6 (contained in the Administration's report) are not recommended. YOUR COMMITTEE RECOMMENDS: That Recommendation #7 of the PRCAB's Cultural Futures Project Report, regarding a Foundation for Cultural Animation, be received as information.
Council Minutes February 26, 1991
1664
MOVED Alderman Binder That Council concur with the recommendation. AMENDMENT MOVED Alderman Paull That Council concur with the Administration's recommendations, as follows: 1.
That the Action Plan outlining the corporate response and modifications to the Nurturing Neighbourhoods Initiative (Enclosure I) be approved.
2.
That the Action Plan outlining the corporate response and modifications to the Multicultural Initiative (Enclosure II) be approved.
3.
That the Action Plan outlining the corporate response and modifications to the River Valley/World's Fair Initiative (Enclosure III) be approved.
4.
That the Action Plan outlining the corporate response and modifications to the Cultural Congress Initiative (Enclosure IV) be approved.
5.
That Recommendation 17 of the PRCAB' Cultural Futures Project Report, regarding a Foundation for Cultural Animation, be received as information (Enclosure V).
6.
That the remaining Action Plans outlining the corporate responses and modifications to the remaining Initiatives (Enclosure VI) be referred to the primary or lead departments or City Boards identified therein, for consideration in subsequent forecast periods.
MOVED Alderman McKay — Bethel That Orders of the Day be extended to complete this Report. FOR THE MOTION: OPPOSED: ABSENT:
Council Minutes F., b1-11 -1rv
'n'
Mayor Reimer, Aldermen Bethel, Binder, Campbell, Hayter, Mackenzie, Mason, McKay, Paull, Staroszik, White. Alderman Kozak. Alderman Chichak.
CARRIED
SUMMARY AND ACTION PLAN: NURTURING NEIGHBOURHOODS
Description New process for planning and delivery of City services, Including: - more active, ongoing citizen participation in planning, design. - integrated delivery of services through cooperative or joint efforts including City departments and other agencies.
PRCAB Recommendation(s) Recommendation #5: Council endorse the concept of nurturing neighbourhoods; approve a pilot project for a nurturing neighbourhood; allocate funding in the first year in the amount of $40,000; and direct senior staff of City Departments (including Community and Family Services, Parks and Recreation, Planning, Police, etc.) to plan and implement joint strategies which support the development of nurturing neighbourhoods.
City Corporate Response Accept with modification.
Administration Modifications/Alternatives (if any) to PRCAB Recommendation
Major Elements of Proposed Implementation Plan
a) Council approves underlying principles (integrated service delivery, citizen participation).
RIR details Terms of Reference for review/strategy by interagency Task Force.
b) Detailed interagency (including affected departments and external agencies) review to:
Task Force does basic research P feasibility.
- determine opportunities for decentralized, integrated participative service delivery, - undertake assessment of community need for more participation, more integrated services, - develop a detailed strategy/ recommendation. c) Funding recommended: $5,000 for interagency task force facilitator. $10,000 for community needs assessment.
Community needs assessment designed and administered by Task Force. Affected departments/agencies review need assessment results and comment. Task Force outlines alternative strategies, recommends one to Council and other agencies' governing bodies. Strategy finalized and implemented.
'
Issues Clarity of roles among stakeholders. Determination of service delivery zones. Co-housing logistics. Ccamunity resources for citizen input. Cost-effectiveness. Lead department: Parks and Recreation
Appendix B NURTURING NEIGHBOURHOODS WORKING GROUP The Nurturing Neighbourhoods Working Group was formed in April, 1992 to develop the Terms of Reference for the Nurturing Neighbourhoods pilot project. It is comprised of staff from those City Departments and Agencies represented on the Community Services Operations Committee as well as one citizen representative who is a member of the Parks, Recreation and Cultural Advisory Board and the Board of The Edmonton Federation of Community Leagues. The members of the Nurturing Neighbourhoods Working Group are: Joan Kirillo, Citizen Representative Mike Kroening, Community and Family Services Linda Rasmussen, Edmonton Board of Health Mary Flannagan, Library Ken Johnson, Parks and Recreation Tim Moorehouse, Parks and Recreation Brian Kropf, Planning and Development P.J. Duggan, Police Service Brian Latte, Transportation Kathy McGarry, Transportation Chris Yap, Transportation It is expected that membership on the Working Group will expand as existing members have expressed the desire for more citizen Furthermore, representatives of other City representation. departments and agencies potentially involved in the pilot project may be added as the project evolves.
Appendix C
COMMUNITY BREAKDOWN A Key Issue for City of Edmonton Community Breakdown - A Definition: Community breakdown is the result of a deterioration in the systems which sustain people within communities. These systems include family, friendships, social networks, organizations, associations, groups, formal services and programs in such areas as health, education, and social services. I. Key Issue - Community Breakdown Individuals and communities are seriously threatened by social problems. The intensity of social problems is expressed through high rates of family loneliness and alienation, family breakdown, crime, unemployment, poverty, and prostitution. The traditional support systems provided to people through community ties such as church, family and work, have disappeared for many people in urban centres. This leads to illness, depression, isolation, people being unable to work and entire neighbourhoods becoming at risk. Furthermore, social problems cut across all social, economic and educational levels, ethnic and religious groups and families regardless of structure. The fragmentation of community and family life which results in (or produces) people who are isolated and alienated is expressed in:
II.
1.
crime - testifying to the lack of informal controls and mutual respect in the community;
2.
family breakdown - resulting from the lack of necessary supports for children and other family members;
3.
unemployment - which leads to poverty and a growing loss of social identity and a debilitating sense of worthlessness;
4.
physical and mental health problems - which strain family relationships and leads to loss of work contributions. Excessive health costs channel community resources away from other problems.
Implications of Ignoring the Key Issue I.
Everyone is worse off - less wealth is created, less taxes collected, poverty increases and large sums are paid out in social assistance and other crisis related service delivery.
2.
It is not cost effective - with an inability to help themselves (in the absence of community support) people turn to government funded services.
Page 2 COMMUNITY BREAKDOWN A Key Issue for City of Edmonton
3.
The fundamental consequences of ignoring community breakdown include: (1) a less safe city - in the absence of feeling part of community, individuals become indifferent to property destruction, to problems of excessive alcohol consumption, to the abuse of women, children and seniors as well as to teenagers being sexually exploited. A person's actions become seen as detached from impacting others. The perception that "everyone is out for themselves" becomes the norm for relating to each other; (2)
no economic vitality - community breakdown fosters conditions which deplete people's physical, mental and financial resources; with the social fabric deteriorating substantial economic viability is impossible;
(3)
escalating costs associated with increasing: (a) demands for traditional forms of policing; (b) demands on reactive social services (Family Violencel); (c) demands on the judicial system; (d) demands on the health care system; (e) demands on the education system.
(4)
social problems escalate and spread if not addressed.
(5)
financial resources which cannot sustain the growing demand for services and traditional service delivery systems.
III. What is needed? A shift in attitudes which manifests itself through: (1) Recognition that society can no longer afford to lose the contribution of all its members. (2) A belief in the capacities of people and communities to solve their own issues and problems. (3) A re-orientation of service delivery to one which supports people and communities to identify and meet their needs.
1
The Family Violence Committee of the Mayor's Task Force on Safer Cities reports: one abuser treated successfully can save society over $75,000 a year in health, social service and criminal justice costs.°
Page 3 COMMUNITY BREAKDOWN A Key Issue for City of Edmonton
IV.
Role of the Municipality: The municipality can play an important role in encouraging healthy communities by: (1) commitment to supporting citizens' capacities - "working with" not "doing for" (2) supporting community-based leadership in identifying and addressing the root problems rather than focusing on symptoms; (3) funding initiatives which encourage collaborative efforts to strengthen community involvement and participation. (4) balancing resource allocation between physical and social infrastructure initiatives that strengthen family and community. City Departments are currently involved in a number of initiatives which reflect the directions indicated above. Examples of such initiatives are the Nurturing Neighbourhoods Initiative, Community Mediation, Community Policing, Friends of Ford Road, Shut-In (Library) Service, Alternative Measures. While these have a potential impact within the scope of each project, they do not necessarily lead to the kind of systems change which is required.
Possible Actions: 1.
Agreement in principle at senior levels to a shift in service delivery from a traditional formal system toward a community based process which emphasizes community participation and decision-making and one in which the civic staff role is that of facilitation and collaboration.
2.
Articulation of corporate values, goals and processes which support the new direction.
3.
Systematically carry out pilot projects which are co-ordinated and integrated and which will indicate progress toward achieving the desired goals.
May 4, 1992/tk
A COMPARISON OF COMMUNITY BREAKDOWN MID THE HEALTHY COMMUNITY
HEALTHY COMMUNITY • • • • • • • •
alienation, isolation resource depletion growing social problems vandalism, frustration adversarial civic staff as bureaucratic managers imposed, centralized decisions inactive community organizations
• • • • • • • •
sense of community private sector investment in the community developing community community pride consensual civic staff as facilitators and collaborators decentralized decision making communities helping themselves
May 14, 1992 NURTURING NEIGHBOURHOODS INITIATIVE PROGRESS REPORT TO COMMUNITY SERVICES STEERING COMMITTEE The Concept: Brief Review Among several recommendations of the Cultural Futures Project (1988), City Council endorsed the Nurturing Neighbourhoods Initiative in February, 1991. Nurturing Neighbourhoods arose out of a broad discussion of cultural life in Edmonton where the neighbourhood of the future was described as follows: "Neighbourhoods become places where neighbours care for each other, and share their knowledge and talents. Citizens meet regularly to identify and debate neighbourhood issues and ideas, particularly civic, health, social, cultural, and educational. Through dialogue and collaboration, residents and professional staff work in partnership to ensure optimum use of resources to provide needed services." The concept envisages a new process for planning and delivering services. The city and other agencies would shift from a Traditional Service System model to a Community Resource based model, where: •neighbourhood residents work with staff proactively in: - deciding what their needs are - deciding how to meet their needs - working in partnerships to resolve issues and create opportunities City and agency staff emphasize: - coordination of effort and resources at the neighbourhood level - collaboration with each other and the community to develop creative, holistic improvements - encouraging, supporting local initiatives City Council directed Administration to proceed with a Pilot Program to demonstrate the Nurturing Neighbourhoods concept. This Pilot would be only one component of an overall shift in policy within the corporation towards a community based process. It is a key component _however, as it will demonstrate how to implement this change in the community. The Pilot will be evaluated to determine how best to apply this community-based, collaborative approach to other areas of the City.
2
Progress Report: Proposed Pilot Program Under the direction of the Community Services Operations Committee, staff have worked over the last 3 months to develop detailed Terms of Reference for the Pilot Program. A working group from Community and Family Services, Board of Health, Library, Parks and Recreation, Planning and Development, Police Service and Transportation are presently meeting weekly. The following are the PRINCIPLES that will shape the Terms of Reference for the Pilot Program: •community driven process of identifying and acting on needs • area selection based on community need, community interest and potential for success • a "cluster" of neighbourhoods, not a single neighbourhood • build on existing services, resources, activities and partnerships • working with formal and informal community groups • comprehensive social, economic and physical Improvement actions • corporate commitment of funds and human resources to follow through on actions identified • local, interagency/community project office • operating principles: - trust - partnership(s) - knowledge of each other - power balance Final Terms of Reference It is expected that the detailed terms of reference for the pilot program will be available by July for review by the Community Services Steering Committee and City Council. Recommendation That this Progress Report be received as information by the Community Services Steering Committee.
Report prepared by: Ken Johnson Parks and Recreation May 12, 1992
FUNDAMENTAL PRINCIPLES: NURTURING NEIGHBOURHOODS IMPLEMENTATION PLAN APPROACH The Nurturing Neighbourhoods concept will be tested through a pilot project approach •
A proposed mission statement for the project is as follows: The improvement of living conditions and the sense of community in neighbourhoods of greatest need, through a community driven interagency program of action.
•
community participation in the planning and delivery of services will be fundamental to the approach, the pilot project will encompass much more than this. It will involve a comprehensive proactive community development approach to nurturing neighbourhoods, including actions in the areas of social services, crime prevention, recreation, health, culture, heritage preservation, housing, economic opportunities, community development corporation initiatives, physical improvement/beautification and environmental quality.
•
The project will build on and support existing successful services, projects, activities and coalitions in the area. It will involve facilitating and empowering community organizations and: -
strengthening connections, coalitions, partnerships identifying gaps in services and suggesting or facilitating solutions assisting with existing projects, and
-
helping to initiate locally controlled community projects
The primary focus of the project will be on social services, community development and economic development initiatives while the secondary focus will be on physical improvements (physical improvements as a means to achieve social goals). A 5 Year Neighbourhood Services Plan will be developed for the cluster of neighbourhoods in the pilot project area. This community driven social action plan will evolve from the community's vision and a participatory needs assessment and will be developed within the first 2 years of the project. Implementation of some aspects of the Plan could be initiated immediately, while others would be longer term, commencing after the Plan was adopted. The project will attempt to develop a sustainable partnership between the community and City departments in the delivery of human services in the area.
-2The project will be evaluated to determine how best to apply the decentralized, coordinated participatory approach to other areas of the City. SELECTION Selection of the pilot project area will be based on need. Selection criteria will encompass various indicators of healthy/unhealthy communities such as socioeconomic conditions, crime rates, social services needs, mental and physical health, housing issues and need for physical improvements. The interest shown by community organizations in participating in the process will also be considered. ORGIZATION The project must have clear mission statements, goals, objectives and action plans. The Community Services Operations Committee will establish the general direction for the project by defining preliminary mission statements. Area residents, community groups and interagency field workers will establish the more specific goals, objectives and action plans for the project - these will evolve out of a community driven visioning process which will kick off the project. An evaluation of the project will be carried out based on the hierarchy of goals mentioned above. The project evaluation will be designed at the outset and will address both process and end product results. Area Councils and Community Leagues will be recognized as the primary community contact group although each and every organization in the community will be invited to participate in the project. A project team made up of seconded staff from participating departments will be assisted by staff in field offices in the area. This extended project team will work collaboratively throughout the process. A project office will be established in the area. It will be situated in close association (co-housed if possible) with one of the participating City Departments.
-3FUNDING Funding for the pilot project will be based on allocating a percentage of the capital and operating budgets of the City over the next five years for areas in greatest socioeconomic need similar to the "one per cent for art" principle. The provincial government will be approached to provide funding and the private sector will be encouraged to participate as well. A preliminary estimate of the funds required for community amenities will be based on funding applied to neighbourhoods involved in the AMPLE Infrastructure Upgrading Program. Only the community amenity portion, typically about 5% of the --overall hard services upgrading budget, will be used as a guideline. A preliminary estimate of the funds required for social service actions necessary to build on and support existing services in the area will be provided by the service delivery departments. UNDERLYING PHILOSOPHY The underlying philosophy may be summed up in the following excerpts taken from a Community Development Discussion Paper prepared for a community development workshop held in Calgary in November 1991: "Community development is defined as a process by which a range of individuals and interest groups participate in the identification, exploration and resolution of community issues. Some of the values and principles associated with community development are: people have the right to be involved in decisions that affect their lives; stakeholder groups should be involved in the change process; change takes place through consensus rather than conflict; people have the capacity to make good decisions if they are given the necessary skills and knowledge; and, community projects must be locally controlled. The roles of community development practitioners or organizations include those of educator, facilitator, organizer and researcher.
-4The challenges relate to needs which may be more effectively developed through community development. These needs are based on difficulties accessing services, difficulties coordinating increased volume of organizations, need for establishing community priorities, and increasing funding difficulties. Some of the functions of a community development body would be a central clearing house, analysis of trends/research/need, advocacy (voice and awareness), promotion of collaborative activities, and facilitation of the development of a shared vision for the community".
Prepared by: K. Johnson Parks and Recreation Department Date: March 13, 1992