entio t PLANNING AND n on DEVELOPMENT
April 26, 2006
MAILING ADDRESS: 5TH FLOOR, 10250- 101 STREET NW EDMONTON, ALBERTA T5J 3P4
Reference No.: 51911729-003
Alberta Association Canadian Institute of Planners 2006 Planning Awards P.O. Box 596 Edmonton AB T5J 2K8 Dear 2006 Awards Committee: Re: City of Edmonton 2006 Awards Submission: Traditional Burial Grounds/Fort Edmonton Cemetery I am pleased to submit the City of Edmonton's Traditional Burial Grounds/Fort Edmonton Cemetery Project for consideration in the 2006 AACIP Awards competition in the Special Study Category.
This project proved to be a very challenging one for the planning team. It called for planning intervention to create innovative strategies and policies to effectively deal with an emotional and complex situation. The project reflects the multidisciplinary aspects of a professional planning team who became involved in such things as archaeological research, geophysical data analysis, historical research, the removal of an arterial roadway off of an existing cemetery, the relocation of utility and trolley bus polls without hitting any burial remains, and the reburial of remains back into the cemetery in a dignified respectful manner. This had to be conducted in conjunction with over 45 individuals and 15 groups and associations whose ancestors were buried in the area. Effective consultation and the development of a clear planning process has resulted in the creation of an aboriginal and early pioneer cemetery, one which the community can be proud of and which will serve as a reminder of Edmonton's historic roots and builds lasting relationships for the future. I have ensured that the eligibility requirements have been met. Both myself, Kulbir Singh, Director and Duncan Fraser, Senior Planner all AACIP members played critical roles in the creation and implementation of this project. Thank you for your consideration of this submission. Yours truly,
Robert Caldwell, MCIP, ACP Manager, Special Projects Office Planning and Development Department Enclosure
CITY OF EDMONTON PLAMONG MO DEVELOPMENT DEPT. LIBRARY PM FLOOR, 10250- 101 STREET NW E.DMONTON, ALBERTA T5J 3P4
AACIP 2006 AWARDS for PLANNING EXCELLENCE and MERIT ENTRY APPLICATION FORM
ALBERTA
Association CANADIAN INSTITUTE OF PLANNERS
Title of Entry :
Traditional Burial Grounds/Fort Edmonton Cemetery
Category:
Special Study
On behalf of:
The City of Edmonton (community, company, organization, client)
Contact Person:
Duncan Fraser
Address:
8th Floor, 10250 — 101 Street, Edmonton, AB T53 3P4
E-mail:
duncan.fraser@ednionton.ca
Phone (bus)
(780)496-6118
Name(s) Other individuals who should be credited in the event of an award
Larry Benowski
Fax:
(home) (780)481-4953 CIP Membership Category
Organization(s)
Nonmember AACIP/CIP full member AACIP/CIP full member Nonmember Nonmember Nonmember
Kulbir Singh Duncan Fraser David Schneider Dean Wray Al Parsons
401-7054
P&D Dept., City of Edmonton P&D Dept., City of Edmonton P&D Dept., City of Edmonton City Managers Office, City of Edmonton Community Services Dept., City of Edmonton Gray Scott Consulting
If selected for an award, by means of this signed form you agree to submit additional material and/or information. Please supply the name(s) and contact information for the following: Materials/Information Required Three photos in electronic format that depict the project (if applicable) Short power point presentation (3 minute maximum) Short written presentation for a news release, etc. An electronic version of the logos of all organizations involved in the project
Contact Name(s)
Duncan Fraser Duncan Fraser Duncan Fraser Duncan Fraser
Telephone Numbers and E-mail Addresses Duncan.fraser@edmonton.ca (780)496-6118 Duncan.fraser@edmonton.ca (780)496-6118 Duncan.fraser@edmonton.ca (780)496-6118 Duncan.fraser@edmonton.ca (780)496-6118
Entry prepared by or under the directio Signature: If different from the contact Person above,
Phone No.
(780)496-6100
bob.caldwellPedmonton.ca
2006 Award Submissions must be received by 4:30pm, Friday, May 12'h, 2006.
2006 Awards Submission • Traditional Burial Grounds/Fort Edmonton Cemetery
@monton City of Edmonton Planning and Development Department • May 2006
2006 Awards Submission • Traditional Burial Grounds/Fort Edmonton Cemetery
Painting of Fort Edmonton V by Father Emile Pet itot, OW, 1877. (The cemetery is shown on the far right side of the painting with white picket fence). Reproduction courtesy of the Hon. Ken Kowalski, Speaker of the Legislative Assembly of Alberta.
Introduction
H
urt, heartache, anguish and pain. This is the story of city planners and others working with 15 groups and 45 stakeholders over a four-year period to create a cemetery for quite reflection and contemplation. This journey has evoked turmoil, community friction, high stakeholder emotions but which eventually lead to optimism and hope. The City of Edmonton is nearing the completion of this journey to establish a historic cemetery in downtown Edmonton. The site contains over 200+ First Nations, Metis, French Canadian and early pioneer settlers. This is reflected in the fact that the First Nations and Metis stakeholders considered the area as their traditional burial grounds. The French Canadians and early pioneers recognized the area as the Fort Edmonton cemetery containing the remains of early pioneers, hence the name traditional burial grounds / Fort Edmonton cemetery. The complexity of the site was compounded by the fact that it has multi-million dollar power and water utilities running through it and is adjacent to a heavy industrial site and located under a major arterial roadway. See Attachment #1 which shows the location of the cemetery. The City of Edmonton was asked to respond to this challenge in 2001 by the Minister of Alberta Community Development since the city owned the cemetery land. As the project unfolded the Planning and Development Department was given the task to create and implement a process to identify the complex and interrelated issues, identify the location of the burial remains by hiring a multitude of heritage, archaeological and geophysical consultants, rezone the land and effectively and sensitively deal with the multitude of stakeholders and their concerns. In addition, the planning team assisted with the creation and implementation of a beautifully designed memorial which obtained the respect of the stakeholders whose ancestors were buried there. City of Edmonton Planning and Development Department • May 2006
2006 Awards Submission • Traditional Burial Grounds/Fort Edmonton Cemetery
The Issue
The disposition of the cemetery came to a sharp focus in 2000 — 2001 when EPCOR, the City of Edmonton utility company wished to expand their electrical generating capacity at their Rossdale plant. The plant is located in the heart of Edmonton in the North Saskatchewan River Valley. As part of their approval process the company applied for necessary provincial approvals which initiated Alberta Energy and Utility Board (AEUB) Hearings on the appropriateness of their expansion plans. An issue which continuously arose was the location of the traditional aboriginal burial grounds/pioneer cemetery. According to the stakeholders who gave evidence at the Hearings, the burial grounds/cemetery was located partially beneath the EPCOR generating facilities. The Board ruled in favor of the utility and permitted the expansion of the plant much to the dismay of the stakeholders. The Alberta Provincial Government stepped in and declared the oldest portion of the power plant a Provincial Historic Resource thereby terminating EPCOR's expansion plans. This was received by many of the stakeholders with guarded optimism. However the disposition of the burial grounds/cemetery issue remained outstanding. The Minister of Community Development in a letter addressed to the Mayor of Edmonton strongly recommended that the City become involved in this issue to address concerns related to the burial grounds/cemetery and the potential development of city owned lands adjacent to the site. Much of the land in question is open space but zoned for low-rise apartments. Therefore the most pressing issues for the planning team included: •
Disposition and Protection of burial remains - How could the burial grounds/cemetery containing over 200 people be dealt with in a respectful and sensitive manner while at the same time addressing the needs of the stakeholders and descendents groups plus the requirements of numerous municipal and provincial departments? Protection of the existing utilities crossing the site also had to be considered.
•
Creation of legal cemetery - What process should be established to identify the boundaries of the cemetery and have it designated under the Cemeteries Act of Alberta?
•
Creation of Memorial - What should a memorial look like which will respectfully acknowledge the existence of the remains while at the same time celebrate the accomplishments of the First Nations, Metis and pioneer ancestors?
•
Site Significance - How should the site be celebrated since it is of provincial and national historic significance? The location witnessed former Prime Minister Wilfred Laurier formally declare Alberta as a province on September 4, 1905.
City of Edmonton Planning and Development Department • May 2006
2006 Awards Submission • Traditional Burial Grounds/Fort Edmonton Cemetery
Working Towards a Solution
The complexity of the project became apparent when the City of Edmonton began holding public meetings in early 2002 with approximately 15 groups and associations and 45stakeholders. Competing interests, divergence of opinions and a need for action required a clear definition of issues and a creation of a process to ensure the establishment of a cemetery.
Defining the Activities and their Outcomes
I
n May, 2003 a special team was created within the Planning and Development Department to address the situation. One of their first tasks was to identify nine activities required to establish and construct the traditional burial grounds/Fort Edmonton cemetery. See Attachment #2 entitled "Activities Leading to the Establishment and Construction of the Traditional Burial Grounds/Fort Edmonton Cemetery and Reinterment." These activities required innovative thinking and careful integration of a multitude of opposing views, often wrapped in emotion and conflict. Tact, diplomacy and careful consideration of First Nations, Metis, French Canadian and Christian cultures was required. These nine activities were followed by the creation of a 10 step legal process to successfully implement the activities. Each of the nine activities with their outcomes and the 10 step legal process will be discussed in turn. Activity # 1 Meetings with Stakeholders/Descendents Groups and Associations The city administration over a four-year period held more than 40 public meetings to clearly define the wishes of the various groups. Aggravating the situation was the fact that eight human remains were accidentally disinterred from the site in the 1960s due to utility trenching. The creation of an appropriate memorial was also required. This involved many evening meetings, design charette's and one on one consultations. Activity #2 Creation of Memorial Design The City hired Manasc Isaac Architects Ltd. to work with the group to create an appropriate and dignified memorial representing the wishes of the major groups involved; First Nations, Metis, French Canadian and Christian. See Attachment #3 which shows a conceptual view of the memorial design representing the outcome of this process. It will be constructed in 2006. Activity #3 Oral History Project The City of Edmonton Community Services Department worked with the Edmonton Aboriginal Urban Affairs Committee of Council to implement the Rossdale Flats Aboriginal Oral Histories Project. The oral history team recorded the oral histories of aboriginal elders, descendents of people interred at the site, historians and community residents who were willing to participate and share their memories of the burial site. Twenty-seven participants were interviewed. The outcome included a two-volume document which took six months to complete. A copy of the oral history may be found on the enclosed CD.
City of Edmonton Planning and Development Department • May 2006
2006 Awards Submission • Traditional Burial Grounds/Fort Edmonton Cemetery
Activity #4 Rossdale Historic Land Use Study The City hired Commonwealth Historic Resource Management Ltd. of Vancouver to conduct a scholarly piece of work for research, interpretive, commemorative and land management activities in the cemetery area. The report documented the historic evolution of the Rossdale community from its earliest point of human contact to 2001. The document also included a review of all previous archaeological and geophysical reports plus a long-term management plan for the archaeological resources of the area. The outcome of this activity included a well-written and illustrated report which was presented and adopted by City Council on April 21, 2004. A copy of the report may be found on the enclosed CD. Activity #5 Planning Processes To ensure the legal creation of the cemetery a portion of a major arterial roadway had to be closed and removed which ran directly over the site. The roadway carries over 30,000 cars per day plus trolleys buses. This situation proved particularly painful for the descendents to bear since the existence of the roadway showed great disrespect for those buried beneath. This became a point of continued agitation and indeed fury during many of the public meetings. With great relief, the road was permanently closed and traffic safely diverted around the site on July 10, 2004. This was achieved through two amendments to Area Redevelopment Plan Bylaws, a rezoning bylaw, a road closure bylaw, plus the issuance of various development and building permits. A Province of Alberta 'Order in Council' was also required to exempt the site from many of the regulations of the Alberta Cemeteries Act since an 'historic' cemetery was being created rather than a normal operational one. Activity # 6 Trolleys Buses Concurrent with this planning process was City Council's desire to maintain the trolley buses throughout the city. As the roadway was being diverted around the cemetery, over 20 trolley and signal poles had to be excavated and relocated to ensure the smooth operation of the trolley system. Transit planners worked closely with a 10 person archaeological team. Luckily the poles were relocated without any disturbance to the burial remains beneath! Activity #7 Alberta Community Development and Alberta Government Services The Provincial Archaeologist and the Provincial Director of Cemeteries worked closely on the project to ensure all relevant Acts and Regulations were adhered to. The successful creation and approval of historic resources impact assessments, archaeological overview statements, disinterment/reinterment permits and an Order in Council resulted.
felmnroton City of Edmonton Planning and Development Department • May 2006
2006 Awards Submission • Traditional Burial Grounds/Fort Edmonton Cemetery
Activity #8 University of Alberta During the 1960's eight remains of individuals were accidentally disinterred during utility trenching through the site. The remains were taken to the Department of Anthropology at the University where they remained for over 30 years. The stakeholders /descendents groups felt it was important to have the remains respectfully reintered back into the site. Appropriate reinterment protocols had to be developed to be respectful of First Nations, Metis and Christian faiths. Elders were consulted over two weekends and burial protocols were developed. A wonderful outcome of this activity was the reinterment of the remains during an elaborate ceremony organized by the City of Edmonton on August 28, 2005. It was attended by more than 500 people. See Attachment #4, which shows photographs of the reburial ceremony. Activity #9 Others The Traditional Burial Grounds / Fort Edmonton cemetery is located adjacent to a heavy industrial site occupied by EPCOR. The utilities consist of critical water and power conduits which service much of south Edmonton. Private property owners within the adjoining residential community of Rossdale were also keenly interested in the city administration's activities in the area. In addition, the Asset-Management and Public Works Department of the City are major land owners near the cemetery. The lands are zoned for low-rise apartments, but have yet to be developed. The outcome of this activity was that all the groups were dealt with in a fair and equitable manner and were kept informed as the project progressed. In summary, it was the responsibility of the planning team to deal with all the various stakeholders, government agencies, departments, consultants and the University within the context of the above activities in order to create a cemetery for the quiet contemplation and reflection of the descendents.
The Ten Step Process
I
f this project and its activities were not challenging enough, an effective implementation mechanism had to be created to ensure that the area was clearly identified, the remains reintered and the memorial constructed. The project team implemented a 10 step process concerning the nine activities as outlined above. This process ensured that the correct time lines and procedures were followed in conformance with provincial legislation and City bylaws. The steps ensured that City actions were carefully coordinated and implemented in accordance with the Historical Resources Act, the Cemeteries Act and the Municipal Government Act. The city wanted to do it right the first time and to take the time to do it correctly! See Attachment #5, which shows a chart describing the 10 step process.
City of Edmonton Planning and Development Department • May 2006 0
2006 Awards Submission • Traditional Burial Grounds/Fort Edmonton Cemetery
The Communications Strategy
A communications strategy was prepared to provide a coordinated and effective release of information. It was prepared and implemented at a critical point in the process. The strategy is enclosed in the attached CD. A way forward was found to a delicate situation through a coordinated effort involving many stakeholders, government agencies and concerned citizens. Complete satisfaction for all proved to be a fleeting goal which could never be satisfied. The wrongs committed in the past could never be righted. The hurt and pain associated with the site will never be completely soothed. The desecration of the site in the 1960s will always remain as a flashpoint for the descendents. This emotional journey called for creative strategies and innovative thinking. The City of Edmonton used its best efforts to deal in a fair way with the demands of the descendents. The nine activities and the 10 step process proved to be the touchstone for City Council's decisions. The City of Edmonton, as stewards of the land will care for the cemetery in perpetuity to ensure that the wrongs committed in the past will never be repeated.
Attachment #1 Attachment #2
Attachment #3 Attachment #4 Attachment #5
Map Showing the location of the Cemetery and the Rossdale Land Use Study Area Activities Leading to the Establishment and Construction of the Traditional Burial Grounds/Fort Edmonton Cemetery and Reinterment. Conceptual View of the Memorial Design Photographs of the reburial ceremony Chart Describing the 10 Step Process
@monton -
City of Edmonton Planning and Development Department • May 2006
2006 Awards Submission • Traditional Burial Grounds/Fort Edmonton Cemetery
rcimonton City of Edmonton Planning and Development Department • May 2006
ATTACHMENT 1 2006 Awards Submission • Traditional Burial Grounds/Fort Edmonton Cemetery
Rossdale Historical Land Use Study
98 AVE. HARD STY AVE.)
98 AVE.
Downtown ARP Rossdal
11
CD,1 31VOSSI
97 AVE. (SASKATCHEWAN AVE.)
96 AVE (CALGARY AVE.)
r
0 96 AVE.
JOHN DUCEY WAY
95 AVE.
95 AVE. MEOD AV RIVER VAI_Lesi
Approximate location of cemetery as defined by Lifeways of Canada Ltd.
94 AVE.
Rossdale Historical Land Use Study Area Boundary between the Downtown ARP and the Rossdale ARP Historic street names in brackets
@ffionton
PLANNING AND DEVELOPMENT
March 2004
City of Edmonton Planning and Development Department • May 2006
ATTACHMENT 2 2006 Awards Submission • Traditional Burial Grounds/Fort Edmonton Cemetery
Activities Leading to the Establishment and Construction of Traditional Burial Grounds / Fort Edmonton Cemetery & Reinterment Stakeholders/Descendant Groups & Associations D. Schneider Corp. Services Dept. & Comm. Services Dept. Ongoing
University of Alberta Creation of Necessary Reinterment Protocols N. Lovell J. Andrews
Creation of Memorial Design 10. Manasc Isaac Architects Ltd.
11
D. Schneider Corp. Services Dept. July '03 - ongoing
Creation of Traditional Burial Grounds Fort Edmonton Cemetery & Reinterment
Oral History Project Consulting Team Edmonton Aboriginal Urban Affairs Committee March '03 - Jan. '04
Rossdale Historic Land Use Study Commonwealth Historic Resource Management D. Fraser Plan. & Dev. Dept
Province of Alberta
Trolley Issue and Road Closure
Planning Processes
Alberta Community Dev. - Requirements for Archaeological Permits and Review L.Hurt & J. Ives
Commonwealth Historic Resource Management B. Stephenson Transp. & Streets Dept. Sept. '03
- Plan Amendments - Rezoning - Road Closure - Development/Building Permits - Order in Council D. Fraser Plan. & Dev. Dept.
Alberta Government Services Director of Cemeteries R. Phillips
Others Private Property Owners - EPCOR - City of Edmonton
Ptepered by Planting and Development Dept April 8, 2004
City of Edmonton Planning and Development Department • May 2006
ATTACHMENT 3
2006 Awards Submission • Traditional Burial Grounds/Fort Edmonton Cemetery
Traditional Burial Grounds & Old Fort Edmonton Cemetery
February 10, 2004 Manasc Isaac Architects Ltd. Bird's Eye View of the Site - Looking South
City of Edmonton Planning and Development Department • May 2006
ATTACHMENT 3 2006 Awards Submission • Traditional Burial Grounds/Fort Edmonton Cemetery - ,MMI
Memory Circle
Interpretive Belvedere
Landing Platform
Bird's Eye View of the Site - Looking North
City of Edmonton Planning and Development Department • May 2006
ATTACHMENT 3
2006 Awards Submission • Traditional Burial Grounds/Fort Edmonton Cemetery
---' Cross: Painted steel with painted metal steel tension members supporting painted metal floating ring ,---'- Planting Material: Native, colourful planting Podium: Concrete Infinite Memory Path: Crushed black shale with granite or agilia concrete berms Memory Plinth: Granite or agilia-poured concrete elements Light Spears: Painted tubular steel with painted steel bases. Illuminated Lighting: Preformed, translucent, impact-resistant polymer Light Source: Solar powered, LED Plinth Seating: Wood slats on preformed agilia concrete or granite supports Memory Plinths: Preformed agilia concrete elements or granite Memory Circle
City of Edmonton Planning and Development Department • May 2006
ATTACHMENT 3
2006 Awards Submission • Traditional Burial Grounds/Fort Edmonton Cemetery --
-
Light Diffusing Canopies: Steel mesh set in steel frames Support Elements: Painted steel Backing for Interpretive Panels: Agilia-based concrete Benches: Wood slats with steel supports below Support Brackets for Interpretive Panels: Painted steel Base of Belvedere: Poured reinforced concrete Belvedere
City of Edmonton Planning and Development Department • May 2006
ATTACHMENT 3
2006 Awards Submission • Traditional Burial Grounds/Fort Edmonton Cemetery
Belvedere - Alternate View
City of Edmonton Planning and Development Department • May 2006
ATTACHMENT 3
2006 Awards Submission • Traditional Burial Grounds/Fort Edmonton Cemetery
Painted steel rails with intermediate steel rails Steel I-beam superstructure Wood deck walkout platform Landing Platform: Galvanized steel grating Or Wood decking on steel superstructure Support Piling: Reinforced concrete pile with bolt-on bracket for steel superstructure above Landing Platform
City of Edmonton Planning and Development Department • May 2006
ATTACHMENT 3
2006 Awards Submission • Traditional Burial Grounds/Fort Edmonton Cemetery
Landing Platform - Alternate View
City of Edmonton Planning and Development Department • May 2006
ATTACHMENT 4
2006 Awards Submission • Traditional Burial Grounds/Fort Edmonton Cemetery
Reburial Ceremony August 28, 2005
City of Edmonton Planning and Development Department • May 2006
ATTACHMENT 4
2006 Awards Submission • Traditional Burial Grounds/Fort Edmonton Cemetery
Reburial Ceremony August 28, 2005
City of Edmonton Planning and Development Department • May 2006
ATTACHMENT 5
2006 Awards Submission • Traditional Burial Grounds/Fort Edmonton Cemetery
Required Provincial & Municipal Planning Processes to Establish & Construct the Fort Edmonton Historic Cemetery and Traditional Burial Ground & Reinterment -A Summary of 10 Steps*
Updated November 8, 2005
Status Step #1 Completed
Step #2 Completed
Key Steps
Dates
Receive Reports - City Administration received
final reports from consultants on Rossdale Historic Land Use Study and Rossdale Flats Aboriginal Oral Histories Project and released them to the stakeholders. Report to Executive Committee & City Council To obtain authority to proceed with
amendments, rezoning bylaws, Order in Council & to send reports to Minister. This report explained process, timetable and implementation procedures in accordance with Municipal Government Act, Historical Resources Act and Cemeteries Act.
Oral History February 2, 2004 Historic Land Use Study — April 7, 2004 Executive Committee April 21, 2004 Council April 27, 2004
Opportunity for the public to niake a presentation to the Executive Committee.
Step #3 Completed
Step #4 Completed
Trolleys Report to T&PW Committee - to
T&PW March 16, 2004
determine future of trolley system. The trolley report was considered at the T&PW Committee on March 16, 2004. A Non-Statutory Public Hearing concerning this report occurred June 22, 2004.
Non-Statutory Public Hearing June 22, 2004
Council subsequently voted to maintain the trolley operations to at least 2008.
Council meeting July 27, 2004
New Trolley Poles required - Archaeological
May - June 2005
investigations required with Alberta Community Development review.
City of Edmonton Planning and Development Department • May 2006
ATTACHMENT 5
2006 Awards Submission • Traditional Burial Grounds/Fort Edmonton Cemetery
Step #5 Completed
Road Closure Bylaw Public Hearing of Council — Council approved the road closure
bylaw
Road Closure - physical closure of Rossdale
Public Hearing of Council July 5, 2004 for Road Closure Bylaw July 27, 2004
Road occurred July 27, 2004 at 10:00 AM C'ompleted Roadway Realignment and Archaeological Work- Archaeological investigations required with Alberta Community Development. New roadway realignment at 105 St. / River Valley Road to be completed in Spring 2005. Amendments to Rossdale Area Redevelopment Step #6 Completed Plan Bylaw & North Saskatchewan River Valley Area Redevelopment Plan Bylaw & Rezoning Bylaw — Report concerning these
bylaw amendments is tentatively scheduled for the July 13, 2005 Public Hearing of Council.
May
June 2005
Public Hearing of Council —July 13, 2005 (tentative)
Opportunity for the public to make a presentation to Council. City Requests Order in Council - and submits Step #7 Completed information on plan amendments, rezoning, road
August, 2005
closure and Final design of the cemetery memorial. Cabinet considers Order in Council. If granted, go to Step # 8. Interment — and official dedication according to protocols to be developed with a variety of groups and the University of Alberta.
August 28,2006
Step #9 To Come
Tender — working drawings and specifications
4a quarter of' 2005
Step #10 To Come
Construction — of historic cemetery / memorial.
Step #8 Completed
for the construction of the historic cemetery and memorial. Spring 2006
* Note - This 10 step summary is based upon achieving and addressing any concerns arising from the required Public Hearing, public meetings and follow up actions resulting from any Executive Committee and Council decisions. Any delays in any stage will lengthen the timelines suggested above. Prepared by Duncan Fraser, Senior Planner
2 City of Edmonton Planning and Development Department • May 2006
2006 Awards Submission • Traditional Burial Grounds/Fort Edmonton Cemetery
eirnonton City of Edmonton Planning and Development Department • May 2006
MAYOR STEPF1EH MANDEL :J.
CITY OF EDMONTON
2nd FLOOR, CITY HALL 1 SIR WINSTON CHURCHILL SQUARE EDMONTON, ALBERTA, CANADA T5J 2R7 PHONE (780) 496-8100 FAX (780) 496-8292 EMAIL stephen.mandel@edmonton.ca
Alberta Association, Canadian Institute Planners 2006 Planning Awards P.O. Box 596 Edmonton AB T5J 2K8 To Whom It May Concern: I am pleased to give my wholehearted endorsement to the City of Edmonton, Traditional Burial Grounds/Fort Edmonton Cemetery submission to the Alberta Association, Canadian Institute of Planners, 2006 Planning Awards. The Traditional Burial Grounds/Fort Edmonton Cemetery project has involved over four years of intensive work by members of the City Administration. This work included over 45 stakeholders and 15 groups and associations many of whom have ancestors buried in the cemetery. Descendents of those buried were actively involved in the process, which greatly added to the project's emotion and complexity. The City Administration forwarded numerous reports, bylaws and resolutions for Council's consideration. All were approved to ensure effective implementation of the project which included actions such as the rezoning of the land as a cemetery, the design of the memorial, the closure of a major roadway which ran over the cemetery and the relocation of bus trolley lines away from the site to name only a few. An excellent professional job has been undertaken by the Administration, culminating in a dignified memorial which will soon be built. The memorial will acknowledge those already buried there and celebrate the contributions of First Nations, Metis, French Canadian and other pioneer settlers in the creation of our community. Yours truly,
Stephen Mandel Mayor
Edmonton Urban Aboriginal Accord Initiative Suite 901, Tower 2 Scotia Place 10060- Jasper Avenue Edmonton, AB T5J3R8
Alberta Association, Canadian Institute of Planners 2006 Awards Program P.O. Box 596 Edmonton AB T5J 2K8
Dear Awards Committee, Re: Letter of Recommendation for the City of Edmonton Planning and Development Department It is with respect and honour that I write this personal letter of recommendation for the City of Edmonton Planning and Development Department (EPDD) on their awesome work and tremendous effort they had invested in bringing the Traditional Burial Grounds/Fort Edmonton Cemetery project to reality. They EPDD in conjunction with many community stakeholders, Aboriginal and non-Aboriginal alike, worked in partnership for several years to bring a process and closure to a very emotionally charged issue regarding the reburial and repatriation of early Edmonton citizens and Aboriginal people that were once buried at the Rossdale area of central Edmonton. As past Chair of the Edmonton Aboriginal Urban Affairs Committee, me and my committee endeavoured to ensure that their were Aboriginal processes and protocols adhered to, as we, the EPDD, and others took al 0-step process to return those unburied human remains, Aboriginal and non-Aboriginal, back to their original resting place. On August 28, 2005, the reburial ceremony marked the end of a truly challenging path, yet marked the beginning of new and better ways that can be used as a model for a dynamic and diverse community to challenge issues that may lie ahead. The EPDD needs to be recognized for all their hard work, honour, and respect they practiced as we moved together through uncertain territory. And in the end I believe that the City of Edmonton and all who live here are better because of that work. Sincerely,
wis Car al, Aboriginal Relations Consultant
THE CITY OF
kk In partnership with
Edmonton Aboriginal Urban Affairs ponlnlittbe(
Alberta COMMUNITY DEVELOPMENT Cultural Facilities and Historical Resources Heritage Resource Management
Old St. Stephen's College
Telephone 780/431-2300
8820- 112 Street
Fax 780/427-5598
Edmonton, Alberta Canada T6G 2P8 www.cd.gov.ab.ca/hrrn
Alberta Association, Canadian Institute of Planners 2006 Awards Program P.O. Box 596 Edmonton AB T5J 2K8 To the Evaluators, Awards Competition: I am writing to you in conjunction with the City of Edmonton's activities in dealing with human remains and historical resources on the Rossdale Flats in Edmonton. I am the Manager of Archaeology & History, Heritage Resource Management Branch, Alberta Community Development, and Provincial Archaeologist for Alberta. Our office plays a regulatory role in the management of historical resources in Alberta, and works with other provincial ministries in connection with human remains issues. The impacts of urban and industrial developments on human remains and historical resources on the Rossdale Flats is of direct concern to us; we can and do require impact assessments and mitigative activities in this regard. The Rossdale Flats have provided challenging issues for our ministry over the 30 years since our legislation and programs have been created. Two versions of historic Fort Edmonton (II and IV) were situated in Rossdale between 1800 and 1831; a cemetery came into Use in this time range, and persisted in use once Fort Edmonton V (situated on today's legislature grounds) came into existence. Other historical resources connected with early facets of Edmonton's history are also present at this location. Between the 1880s and the present time, intense urban and industrial impacts affected the Rossdale Flats. These included roadways, rail lines, power generating and water treatment facilities, amongst other factors, including periodic natural flooding. In fact, substantial damage to the integrity of the cemetery and historical resources on the Rossdale Flats had occurred by the middle of the twentieth century, at a time long before routine management of historical resources took place. Rossdale Road, carrying thousands of vehicles daily, had for many decades run directly over part of the cemetery, for instance. Many of these concerns reached a flashpoint during the Alberta Energy and Utilities Board hearings in 2000, for EPCOR's Rossdale 11 power generation application. First Nation, Metis and Euro-Canadian descendants of those buried at Rossdale in the 19th century, expressed deep dissatisfaction with the state of affairs, although the cemetery would not have been further impacted by EPCOR's development. Ultimately, EPCOR did not go ahead with their development. In the context of another meeting with City of Edmonton managers in 2001, I had the opportunity to broach the idea of the City engaging stakeholders specifically on the Rossdale Flats issues. .../2
Alberta Association, Canadian Institute of Planners Page 2
This was not a simple topic. The costs to the City in changing the state of affairs on the Rossdale Flats would be considerable; stakeholder feelings concerning Rossdale were as intense as can be imagined. The situation was both uniquely and powerfully charged, in ways that could have led to serious, unresolved conflict. It is an enormous credit to the City of Edmonton, and it staff members, that this challenge was accepted. Working with other city Departments, ECPOR and various Government of Alberta ministries, Edmonton Planning and Development set in place a ten-step process designed to change the state of affairs. In a carefully orchestrated sequence of events, historical land use and oral history studies were undertaken. The zoning and public consultation issues were formidable, particularly when there were pressures from stakeholders to simply do something, immediately. With careful planning, Rossdale Road was closed. Extensive, stakeholder-guided commemorative plans were put in place to restore sanctity to the cemetery area. The City of Edmonton worked closely with Alberta Community Development to ensure that an area of the historic cemetery could be cleared for reburial purposes. The City worked directly with our office and the University of Alberta to see to the reburial of human remains from the historic cemetery that resided in the collections of both institutions. In August of 2005, this reburial took place, in a powerful and positive ceremony hosted by the City. At the same time, this planning process allowed for work with Alberta Government Services to create a provincial Order-inCouncil, recognizing the Rossdale Burial Ground specifically as a historic cemetery. The Orderin-Council both protects the Cemetery and allows for its continued use for reburial in the event any additional, historic human remains are encountered. No one can undo the impacts of Rossdale's difficult recent history. Yet, through this Edmonton Planning and Development process, there was extensive and meaningful public consultation, a systematic approach to rezoning needs, and an infinitely better, more sensitive outcome. Alberta Community Development commends the City of Edmonton for its genuine and considerable efforts, and for the incisive nature of its planning process. For both me and my staff members, it has been a pleasure to work closely with City staff members so sincerely dedicated to changing a most unfortunate situation into one with considerable hope for the future. Sincerely,
Dr. Jack Ives Manager, Archaeology & History (Provincial Archaeologist)
Alberta
Government Services
Office of the Executive Director Consumer Services
3rd Floor, Commerce Place 10155- 102 Street Edmonton, Alberta Canada T5J 4L4
Telephone 780-422-8177 Fax 780-427-3033 Email: rob.phillips@gov.ab.ca
CIF1932
Alberta Association, Canadian Institute of Planners 2006 Awards Program P.O. Box 596 Edmonton, Alberta T5J 2K8 Dear Sir/Madam: I am pleased to provide a letter of support for The City of Edmonton, Planning and Development Department, Traditional Burial Grounds/Fort Edmonton Project. Alberta Government Services (AGS) was involved with this project through its responsibility for administering the Cemeteries Act and Regulations. The City of Edmonton (the City) requested the Traditional Burial Grounds/Fort Edmonton Cemetery be exempted from specific sections of the Cemeteries Act due to its historical nature. This exemption was granted by AGS. The City took a proactive approach in dealing with issues on historical, unregistered burial sites. There is currently no legislation dealing directly with this type of burial site to provide guidance for regulators or landowners. The City's approach involved extensive consultations with a large and diverse group of stakeholders. City staff developed and executed a detailed action plan that addressed a wide range of issues that had to be resolved during the project. The planning department is to be commended for developing a respectful and inclusive process that provides an excellent model should a similar burial site be discovered in another part of the province. Sincerely,
Rob Phillips Executive Director
COMMONWEALTH Suite 308 2233 Burrard Street Vancouver, B.C., Canada 3H9 Tel: 604-734-7505 Fax: 604-734-7991 e-mail: vancouveachrml.com
Alberta Association, Canadian Institute of Planners 2006 Awards Program P.O. Box 596 Edmonton AB T5J 2K8 Re: Traditional Burial Grounds / Fort Edmonton Cemetery Dear Awards Jury: I am writing this letter in enthusiastic support of the awards submission from the City of Edmonton Planning and Development Department for the Traditional Burial Grounds / Fort Edmontoir Cemetery. It is a pleasure to praise the achievement of the Planning Department, speaking as a member of the project team. Our firm specializes in heritage and cultural planning. We were the contractor for the Rossdale Historical Land Use Study, which set the historical parameters for the project and summarized the then current knowledge on the cemetery. We were subsequently the project manager for 'the archaeological investigation and monitoring (the archaeological work was done by Golder Associates) for the realignment of Rossdale Road, which at the time passed directly over the centre Of the cemetery; and we were also involved in assessing the potential heritage impact of the proposed monument that will be erected next year. The Rossdale project was very special from the start. It presented many considerable challenges, including coordinating the various planning considerations, the countless technical matters, and the difficult social issues. ' The last required maintaining constructive consultation with the many stakeholders, including representatives of diverse Aboriginal groups. The Planning and Development Department managed the work very pragmatically and effectively, by devising a 10-step process that anticipated with considerable accuracy the initiatives that would be required, their risks, and their timing.
COMMONWEALTH HISTORIC. RESOURCE MANAGEMENT LIMITED
2 The success of the Planning and Development Department's approach was evident in the marvellous reburial ceremony held last August. The event galvanized the community — individuals and organizations that had been sparring came together to celebrate this very special event. Support came from all quarters, and those who were the most vocal critics and sceptics at the outset agreed that the project had come to a most successful conclusion. I hope that these thoughts are helpful in your deliberations.
Sincerely your
arold Kalman, Ph.D. Principal
&
ray Scott
Consulting Group Inc.
Alberta Association, Canadian Institute of Planners 2006 Awards Program P.O. Box 596 Edmonton, AB T5J 2K8
To Whom It May Concern: Please accept this letter of support for the submission of the Planning and Development Department of the City of Edmonton for the 2006 Awards for Planning Excellence. As the facilitator and process manager for the public and stakeholder consultation aspects of the project, I had the opportunity to work closely with Planning and Development department personnel throughout the process and I welcome the opportunity to lend my support for their awards submission. The project was very challenging in that many different stakeholder groups were involved and many of the representatives had deep emotional ties to the site. In addition, many of the participants had high expectations for the design and extent of the commemorative site, what it should be commemorating and how to share the history. Further, much of the historical legacy of the project was open to debate and there were strongly divergent opinions amongst stakeholders about the oral history and the archaeological findings at the commemorative site. One of the major strategies that contributed to the success of the project as it moved forward was the creation of the process summary and continued efforts throughout the project to refer stakeholders of the process and the stages and timelines within the process. Many of those involved became knowledgeable of the ten step process and the associated time lines As a result of the strategy as described above, and the inclusive stakeholder engagement and consultation process, this project has been successful, culminating in a thoughtful, emotional, multi-cultural, multi-denominational ceremony to rebury the remains of stakeholder ancestors on August 28, 2005. I have no doubt that the remaining work to complete the commemorative site will also be successful, in part due to the diligence, patience and knowledge of the personnel of the Planning and Development department. Respectfully submitted, -
Al Parsons, Principal Gray Scott Consulting Group Inc. 3219 — 112 Street • Edmonton, AB • T6J 3X6 • (780) 434-9322
jags@telusplanetnet
TRADITIONAL BURIAL GROUNDS AND
FORT EDMONTON CEMETERY
REBURIAL CEREMONY AUGUST 28, 2005 The City of Edmonton Planning and Development Library
Tawow Bienvenue Welcome Thank you Today's ceremony was planned by descendants and community stakeholders who have been the driving force behind the preservation of the remains buried in Rossdale. The City of Edmonton gratefully acknowledges their remarkable efforts. Kinandskomitinawaw. Anohc sitoskawatinak ôki kakiskisitohtawacik owahkomipaniwawa ota kaldn ' akinimiht ota kayas kihkahaskwanihk. Wiyawaw oma okaskihcikewinowaw Amiskwaciwiwaskahikan otenaw sitoskawewak ôhi iskwewa ekwa napewa oma kâ miyos'ihcikeyit. La ceremonie d'aujourd'hui a ete planifiee par les descendants et des personnes interessees. Ces gens ont ete la force motrice qui a assure la preservation et la re-inhumation des ossements de l'ancien cimetiere de Rossdale. La ville d'Edmonton leur est tres reconnaissante pour leur remarquable devouement.
COVER PAINTING FORT EDMONTON, PAUL KANE, 1847 WITH PERMISSION OF THE ROYAL ONTARIO MUSEUM
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Traditional Burial Grounds and Fort Edmonton Cemetery Edmonton's river valley flats — and the area now known as the Rossdale flats in particular — have been an important site for Aboriginal encampments for thousands of years. In the early 1800s, residents of Fort Edmonton created a cemetery outside the Fort's walls near what is now the north end of the Walterdale Bridge. The boundaries of the Fort Edmonton Cemetery are known because traces of the original fence posts have been located. The full extent of the Traditional Burial Grounds is not as well understood. Recent archeological surveys have indicated burials both inside and outside the fenced cemetery area. In 1854 Father Albert Lacombe established the St. Joachim mission and chapel within the walls of Fort Edmonton. His diligent register entries and the Hudson's Bay journals give us a record of the burials in the Fort Edmonton Cemetery. More than 100 French Canadian, European, Metis and Aboriginal people were buried there. Many of the recorded deaths are from disease, and more than half are children and infants. The cemetery was in use for more than 100 years. Eventually the Fort was dismantled and Aboriginal people were forced from the area. The burial grounds and cemetery were paved over by roads, utilities and buildings. 2
Aboriginal people, French Canadians, Metis, voyageurs and European settlers all laid their loved ones to rest in the cemetery and surrounding fields outside the walls of Fort Edmonton. Little is known about the remains being buried today. What is certain is that in life, these people laid the foundations of the community we know today as Edmonton.
Today's program Today's ceremony will see remains previously removed from the site respectfully returned. The event has three parts: the Procession, the Ceremony, and the Burial. The Procession will begin at 2:30 p.m. with the call of bagpipes. When you hear the pipes, please gather behind the horse drawn wagons for the short walk to the Ceremony. If you are unable to walk the 200-metre distance, a wagon is available. At the Ceremony site, please be seated. Spiritual leaders from the capital region will conduct a service to return these remains to their resting place.
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Upon conclusion of the Ceremony, follow the pallbearers to the Burial. The graves have been opened inside the actual burial ground, in a location selected by archaeologists to minimize the danger of disturbing other graves. The eight caskets will be placed in the graves by pallbearers who are, in most cases, related to those buried on the site. Guests are invited to place a handful of dirt on the caskets as they move past to pay their respects. Employees from the City of Edmonton's Cemetery Operations are on hand to secure the graves and complete the burial process. After the Burial, please make your way to the large tent. Mayor Mandel will bring greetings from the City, as will other dignitaries and descendants. Light refreshments will be available.
Procession Today's ceremony pays tribute to the deceased by using many elements of burial services from their time. At Fort Edmonton, for example, it was customary for a procession to accompany caskets from the palisade walls to the burial ground or cemetery. Caskets The caskets are constructed of pine using an all-wood joinery technique. In the 19th century metal hinges and hardware were scarce and thought to be too valuable to be used on caskets. 4
Remains The remains being buried today have been in the care of the University of Alberta and the Medical Examiner's Office for many years. University employees prepared the remains for today's reburial, following protocols established for this and other reburial ceremonies. The remains have been wrapped in simple cotton blankets and placed on a bed of buffalo fur (unidentified fur was found with the remains). Grave goods that were found alongside the remains have also been placed into the caskets. The caskets are permanently sealed with wooden pegs. The partial remains of six individuals — five adults and one infant — have come from the University of Alberta. Two caskets that contain bone fragments from an unknown number of people have come from the Medical Examiner's Office. Flowers The flowers that sit on each casket are tributes of respect from the City of Edmonton. Blankets Pendleton blankets are draped over the caskets, at the request of descendants.
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Ceremony Pipe Ceremony Earlier today Elder Mike Rain, Elder Louie Rain, Elder Jerry Wood and Elder George Good Striker Sr. performed a traditional pipe ceremony on the site. The area was smudged with the smoke from burning sweet grass, and a variety ofAboriginal burial protocols were conducted. Multi-Faith Service of Reburial Several spiritual leaders from Edmonton have joined the four Elders to conduct the reburial ceremony. Reverend Dr. John Henry Weinlick represents the United Church; Very Reverend Greg Kerr-Wilson represents the Anglican Church; Father Jim Holland and Father Andre Vincelette (French) represent the Catholic Church. Reverend Chris Roulson, the City of Edmonton Chaplain coordinated the service. Languages Services today will include the English, French and Cree languages. Music Musical selections represent the cultures and musical traditions that would have been found in Edmonton at the time of the original burials — Aboriginal drummers and singers, a French Canadian fiddler, Scottish bagpipes and songs in English, French and Cree. 6
Burial Graves The location of the graves was carefully selected by archaeologists working with employees from Alberta Community Development. The graves and the caskets that bear the remains were kept as small as possible so that opening the graves would not disturb other remains buried at the site. Buffalo sage The caskets are placed on a bed of buffalo sage, which is used as a purifying element in some Aboriginal cultures. Grave markers The graves will be marked later this year with eight granite markers. Whatever is known about the individuals will be carved on the markers. One additional marker will be placed on a known, undisturbed burial site. Another marker will recognize remains buried at the Beechmount cemetery. Pallbearers Many of today's pallbearers are descendants of people buried in the burial grounds and cemetery.
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What's Happens Next? On July 13, 2005 Edmonton City Council took the final step towards designating this site as a legal cemetery. Final approval is now pending from the Government of Alberta. No further burials will be allowed at this site, with the exception of any other human remains accidentally disturbed from the Rossdale flats area. Construction will soon begin on a $1.3 million memorial park to recognize and protect the remains buried here. Drawings of the park and samples of the interpretive panels are on display inside the large tent. While it might seem unusual to bury remains before construction begins, the City was urged by Aboriginal elders to return the remains to the ground as quickly as possible. The memorial will contain a central cross, a wall with the names of those buried, a river valley outlook and an interpretive area. The memorial will be constructed of steel and granite. In preparation, a portion of Rossdale Road has been removed and the area is being restored to a more natural park-like appearance. Once the remaining site asphalt is removed appropriate links to the existing river valley trails will be constructed. The formal opening of the site will take place late in 2005 or in spring 2006.
Thank you for attending today's event and for participating in a part of Edmonton's history. 8