NURTURING NEIGHBOURHOODS PILOT PROJECT GUIDING DOCUMENT FOR DEPARTMENTAL PARTICIPANTS
July 5, 1993
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
9
7.
Pilot Project Evaluation
10
8.
Pilot Project Timeframe and Budget
11
Appendix A:
Nurturing Neighbourhoods Working Group
Appendix B:
Nurturing Neighbourhoods Pilot Project Terms of Reference Approved by City Council, May, 1993
Appendix C:
"Community Breakdown - A Key Issue for the City of Edmonton", May, 1992
NURTURING NEIGHBOURHOODS PILOT PROJECT GUIDING DOCUMENT FOR DEPARTMENTAL PARTICIPANTS 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 September, 1989. The report contained a broad definition of culture and proposed 10 initiatives for the City's cultural development. The Nurturing Neighbourhoods Initiative was described in the executive summary of that 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 civic government departments. Residents of the 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 and directed the administration to prepare a detailed Terms of Reference to implement a pilot project.
1
1992 Staff resources were assigned in February, 1992 and a Working Group was formed. The Working Group comprised a citizen representative and staff from Community and Family Services, Board of Health, Library, Parks and Recreation, Planning and Development, Police Service and Transportation (see Appendix A). This group prepared a draft Terms of Reference for the Nurturing Neighbourhoods Pilot Project, dated June 17, 1992. 1993 The Parks, Recreation and Cultural Advisory Board was asked by Council to establish a committee to review the Terms of Reference. The committee, chaired by a Board member and comprising a representative from the Community and Family Services Advisory Committee and staff from Edmonton Board of Health, Community and Family Services Department and Parks and Recreation Department, presented a revised Terms of Reference (see Appendix B), which was unanimously approved by Council in May of 1993. 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" amongst Edmonton citizens. It arose out of a 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 must 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."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 in the process of developing a "core value" for the Corporation that would facilitate the Corporation working cohesively to prevent what has been described as "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 Guiding Document (Appendix C).
2
With the adoption of this core value, more City resources will be directed to bottom-up, community based processes. The role of City staff will shift from being "managers of services" to being facilitators and 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 capabilities 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 will shift from a traditional service delivery system where the focus is strictly on the formal 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 dommunity 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.
3
As the diagram below illustrates, the individual in the community is the central figure in this community based system. THE COMMUNITY RESOURCE BANK
INFORMAL SOCIAL NETWORKS AND SELF HELP GROUPS
JNDIVI DUAL SELF HELP
INDIVIDUAL IN COMMUNITY
TRADITIONAL SERVICE DELIVERY SYSTEMS
INFORMAL AND FORMAL COMMUNITY GROUPS
The Nurturing Neighbourhoods Pilot Project will 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 neighbourhood(s) 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 may be taken in many areas including social services, crime prevention, recreation, health, culture, heritage preservation, housing, economic opportunities, corporate community development initiatives, physical improvement/beautification and environmental quality. Through the provision of resources and information and support of skill development, the aim is to strengthen the social support network of the neighbourhood (s). 4
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.
5
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. - 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 neighbourhood(s) 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. 6
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. 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 neighbourhood and community groups will be involved throughout the process. Groups may include Community Leagues and Area Councils, business groups, not for profit organizations, religious organizations, parent/school associations and any other special interest groups. New groups may be formed through the identification of issues and processes.
C)
Pilot Project Administration Team Project staff will be identified from each of the following departments and Edmonton Board of Health, Edmonton Police Service, agencies: Community and Family Services, Libraries, Parks and Recreation, Planning and Development, Transportation. Other departments may also be involved. Project staff will be involved in a collaborative process with one another and the community whereby project management roles may evolve and change during the process. The structure of the pilot project team, including project leadership, will evolve based on community needs and the process - it will start with field staff talking to each other and the 7
community. It will evolve from staff developing an understanding of each others' complementary roles and responsibilities and may result in a structure which includes local residents on a project administration team. The pilot project will be staffed from existing resources. The project must involve 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. Relevant agencies, school boards and provincial and federal departments operating in the pilot project area will be involved in the process. Where City of Edmonton departments or agencies have field staff working in the area, these field staff will dedicate a flexible percentage of their time to the project. Departments which do not have field staff working in the area will assign staff to the project to be available as required. 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 will 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 will have the authority to request other resources in their own department and in other departments; there will need to be prompt responses when these resources are requested in order for the program to work. In this way the resources applied will be very responsive, flexible and adaptive - determined by the needs identified through the community process. There should be consistency/continuity in staffs' involvements in the pilot so the community can get to know staff and can rely on them for the duration of the pilot. Stability in terms of community interface is of critical importance. The need for additional resource people will be determined through the community process and normal departmental budgeting processes. They might be required for special projects requiring intensive short term work or specialist work to supplement _existing staff skills, and would require priority status from respective departments.
d)
Steering Committee A Steering Committee comprising the five contributors to the Councilapproved Terms of Reference (one PRCAB member, one CAFSAC member, one staff representative from each of EBH, P & R and C & FS) will coordinate pilot project initiation, including orientations for the community and staff, development of the pilot area selection process, development of the general approach to pilot project evaluation, and coordination of reports to City Council. In addition, the Steering Committee will be responsible for regularly convening the original working group for the purpose of monitoring the progress the Corporate Core value shift and developing strategies to support Nurturing Neighbourhoods within each Department. Participation by other Departments on the Steering Committee may be required as the project area and key community needs are identified. Requests for additional staff on the Steering Committee will be recommended by the Project Administration Team approved by CSOC.
e)
Community Services Operations Committee Community Services Operations Committee members will work to ensure clear understanding of the pilot project and its priority status within their respective departments. They will be responsible for selection of the Pilot Project area and for review of evaluation results and reports to Council.
f)
City Council Council has approved the Terms of Reference for the project. 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.
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 used to select the pilot project area are related 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 pilot project area will include but not be limited to:
9
community readiness: existing identifiable community based groups, networks and communication vehicles. Willingness of 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. - communities which have a range of problems. Indicators used to measure the "health" of the community may include socioeconomic conditions, public safety, community involvement, housing and perceived quality of community life. communities which have experienced some degree of demographic change and rejuvenation. b) Selection Process The specific selection process will be developed by the Steering Committee in consultation with other departments, CSOC, and attendees at public information sessions. 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. Evaluation will be the responsibility of the Nurturing Neighbourhoods Steering Committee who will identify an evaluation team made up of participating staff and community members. The evaluation is an extremely important component of the pilot project. It will be designed in consultation with the community 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. The evaluation will be primarily qualitative to focus on the process used and outcomes achieved. Such an approach is appropriate in community development, as these projects typically have objectives related to both process and outcome. The success of community development depends, in part, on how the process brings about new experiences, partnerships, learning and change among participants. It will be a participatory evaluation involving the community, project staff and management of departments and agencies involved. 10
The following key principles are proposed for the evaluation of the Nurturing Neighbourhoods Pilot Project: both the process and the outcome shall be evaluated; the evaluation shall be collaborative, with both City and community representatives taking part; the evaluation shall be ongoing throughout the pilot project (as opposed to being undertaken when the pilot is ended); - the specific evaluation methodology will be designed at the outset of the pilot project and shall take into account both the City's and the community's objectives for the project; the community will be supported in identifying objective indicators for evaluation, based on the specific issues and needs which the community identified at the outset of the project. 8.
PILOT PROJECT TIMEFRAME AND BUDGET a) Timeframe Since the process will be community driven and since the intent of the project is to foster an ongoing community process, there will not be a definite timeframe. However, the commitment by the City to involve staff intensively in the pilot project area and to evaluate results will be for a 1.5 year period. An interim review conducted during this period will determine whether or not the timeframe should be extended. Presentation to City Council
May, 1993
Information Package Sent to City Staff
July, 1993
Information Sent to Public
September, 1993
Orientation Session for City Staff
September, 1993
Workshop(s) for Interested Communities
October, 1993
Community Application Deadline
November, 1993
Selection of Pilot Project Area
November, 1993
Orientation for Pilot Project Staff 11
December, 1993
January, 1994
Pilot Project Begins Completion of .(Interim) Evaluation Report to Community Services Committee
May, 1995 June, 1995
bY Budget Staffing costs for the pilot project will be borne by the participating departments as staff will be assigned/seconded to the project. Operational costs related to the project including communications and the citizen participation process will be budgeted for and designated in participating department budgets. Budgeting of funds required for any special resource people (discussed in section 5 (c)) will be determined on an annual basis, dependent upon the community based process as it develops.
July 5, 1993 STEERING COMMITTEE MK/TM/dmf
12
Appendix A 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.
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8
Nurturing Neighbourhoods Pilot Project Terms of Reference RECOMMENDATIONS: 1. That the Terms of Reference for the Pilot Project be approved (Enclosure I). 2. That a committee including one member each from the Parks, Recreation and Culture Advisory Board, the Community and Family Services Advisory Board, the Edmonton Board of Health, the Parks and Recreation and Community Family Services Departments be formed to initiate and manage the Pilot Project. 3. That all impacted City Departments identify staff members to participate in the Pilot Project once a project location(s) has been determined. HISTORY On February 9, 1993 City Council directed the Parks, Recreation and Cultural Advisory Board to establish a committee to review and report back on terms of reference for a Nurturing Neighbourhoods Pilot Projects (Enclosure II). DISCUSSION The committee members (Enclosure III) met and reviewed the Nurturing Neighbourhoods Terms of Reference as developed by the inter-department working group. The committee then developed a revised Terms of Reference and implementation strategy. JUSTIFICATION The Terms of Reference and Pilot Project will initiate a component of the Cultural Futures Report relating to a Nurturing Neighbourhoods initiative, approved by Council in April 1990. A steering committee made up of key Community and Department stakeholders is required to initiate, monitor and report on the Pilot Project. Municipal commitment and participation by City Departments in the Pilot Project is required to ensure that the changes in service delivery described in the Terms of Reference are able to be implemented. The Terms of Reference assume that existing current operating resources and present Capital Budget processes will be utilized to undertake the Pilot Project and any recommendations for changes to these resources may be included as part of the Pilot Project report. ENCLOSURES Nurturing Neighbourhoods Terms of Reference Council Direction Summary II III Committee Members Rachel Corbett Written by: Approved by: Dick Haldane
ENCLOSURE I
NURTURING NEIGHBOURHOODS PILOT PROJECT TERMS OF REFERENCE INTRODUCTION Evolution of City and Community Partnerships The Nurturing Neighbourhoods Initiative was developed in response to an expressed concern about a "declining sense of community" amongst Edmonton citizens. It arose during the Cultural Futures process with the development of a vision of the ideal neighbourhood, where the neighbourhood of the future was described as: "Places where neighbours care for each other, and share their knowledge and talents. Citizens meet regularly to identify and debate neighbourhood issues, 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". In order for the Nurturing Neighbourhoods concept to become a reality both the City and the Community will be asked to do business in a very different partnership than is in use presently. For a chronology leading up to the Nurturing Neighbourhoods Pilot Project, see Appendix A. Nurturing Neighbourhoods Philosophy The Nurturing Neighbourhoods Initiative is a pilot community development project. Community development is generally the process in which people in a community define their needs and identify means to satisfy them. Community development can involve a range of actions involving local people making key decisions, obtaining new skills and knowledge, making better use of existing resources and services, and ultimately, being supported in taking a more active role in meeting the needs of their communities. There are two important aspects of Edmonton's Nurturing Neighbourhoods Project: -
Firstly it involves people in a community taking greater responsibility for identifying arid resolving their community's problems.
-
Secondly, it involves City services and program delivery staff providing well coordinated services and programs at the community level, with City staff playing stronger facilitating roles than previously experienced by the community.
The Nurturing Neighbourhoods Project will not be confined to the services of any one municipal department or agency. The project will involve City departments and community, school and health
agencies. The main ingredient in a "nurturing neighbourhood" is that residents of the neighbourhood have taken the lead role in identifying what needs and issues are most important. Success of the project will be demonstrated in the ability of all participants to bring their collective resources to bear on resolving local issues and furthering local initiatives. Hopefully, the Nurturing Neighbourhoods Project will create communities where formal and informal community groups, service agencies and municipal departments will work together to resolve community problems and coordinate services. The end result will be an improved quality of life in Edmonton neighbourhoods. Typical stakeholders may include: Formal Groups
- community leagues - area councils - parent advisory groups - not for profit community agencies - businesses
Informal Groups
- individuals - informal neighbourhood groups - community issue based groups
City Departments - Parks and Recreation - Community and Family Services and Agencies - Police - Transportation - Board of Health - Planning and Development - Libraries - other City Departments HOW THE PROJECT WILL WORK The Nurturing Neighbourhoods Project will involve people in a community taking greater responsibility for identifying and resolving their community's problems. This will mean community residents: deciding what their needs are; -
deciding how to best meet these needs; and
-
working in partnership to resolve these needs
Secondly, it will involve providing coordinated City services and programs at the community level. This will mean City and agency staff: -
being flexible and responsive to community needs;
-
cooperating with each other and with other departments in providing services; and
-
supporting local involvement in initiatives aimed at solving community problems
EXPECTED RESULTS The expected benefit of participating in a nurturing neighbourhoods partnership is improvement in the quality of life of the neighbourhood. This may mean such changes as: -
a greater sense of community involvement and pride among neighbourhood residents;
-
participation by a broad and diverse group of community stakeholders in planning and decision making; seeking and finding agreement on needs, issues and priorities, and being able to focus resources and programs on needs which the neighbourhood and the City together deem most important; and
- the neighbourhood having meaningful input into decisions which affect it. Quality of life may also mean measurable changes to the community including physical improvements, or changes in social indicators such as crime rates or duration of residence. The nurturing neighbourhoods partnership should also improve communication within the neighbourhood, between the neighbourhood and the City, and between various City departments. This improved communication will help the City and the community to identify issues and to determine the most appropriate resources and courses of action for their resolution. NURTURING NEIGHBOURHOODS: INTENDED COMMUNITY AND DEPARTMENT CHANGES Principles Front line staff are empowered to initiate change in the way a Department(s) does business in a community. Staff are valued for making collaborative and prompt service delivery decisions which have a positive effect on community issues and initiatives. Departments and community stakeholders undertake joint planning. Examples Before Nurturing Neighbourhoods Concerns are often been expressed by community(s) that when they have issues to resolve or visions for improvement, they are required to deal in a piecemeal fashion with a fragmented bureaucracy, which has difficulty dealing with integrated solutions.
Issues and visions which involve a number of Departments/agencies require a great deal of volunteer legwork to contact appropriate persons, identify resources, set up meeting schedules and negotiate various commitments. Solutions generated at the community level are often reviewed and modified independently by various departments, by Council and committees of Council, before being implemented. This often occurs without further consultation with the community and may lead to resentment within the community. As a Result of Nurturing Neighbourhoods Community issues and ideas are identified by community or staff members and all City Departments and agencies who can contribute are immediately accessible and able to participate with the community in identifying and implementing solutions. Staff have the ability and are specifically encouraged to respond to community initiatives and to recommend changes to Departments' practices and policies in order to better meet the needs of a community in a given situation. Collaborative decisions between community/Departments/agencies are brought forward for approval, when necessary, as single, comprehensive recommendations, supported by the parties involved. EVALUATING THE PILOT PROJECT 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 will be primarily qualitative to focus on the Such an approach is process used and outcomes achieved. appropriate in community development, as these projects typically have objectives relating to both process and outcome. The success of community development depends, in part, on how the process brings about new experiences, partnerships, learning and change among participants. Evaluation will be the responsibility of the Nurturing Neighbourhoods Steering Committee who will appoint an evaluation team made up of participating staff and community members. The following key principles are proposed for the evaluation of the Nurturing Neighbourhoods Pilot Project: -
both the process and the outcome shall be evaluated;
-
the evaluation shall be collaborative, with both City and community representatives taking part;
-
the evaluation shall be ongoing throughout the pilot project (as opposed to being undertaken when the pilot is ended);
APPENDIX 1. NURTURING NEIGHBOURHOODS - A CHRONOLOGY OF EVENTS 1988 The Parks, Recreation and Cultural Advisory Board undertook the Cultural Futures Project in 1988 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 September, 1989. The report contained a broad definition of 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 civic government departments. Residents of the 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 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 was formed. The Working Group comprises a citizen representative and staff from Community and Family Services, Board of Health, Library, Parks and Recreation, Planning and Development, Police Service and Transportation. This group prepared a draft Terms of Reference for the Nurturing Neighbourhoods Project.
1993 The Parks Recreation and Cultural Advisory Board was asked by Council to review the Terms of Reference. The Board considered that greater community input was needed and received Council's approval to establish a committee of five, of which two were community representatives, to review and revise the terms of reference.
ENCLOSURE IL
Alderman Bethel on the Nurturing Neighbourhoods
MOVED Alderman Bethel - McKay 1.
That priority be given to the development of the nurturing concept approved by City Council in 1991, a public participation process to identify community needs and to devise strategies and action plans to resolve issues.
2.
That the Administration work with the Parks, Recreation and Cultural Advisory Board and the Edmonton Federation of Community Leagues in the development of this program.
3.
That the process and criteria to prioritize neighbourhoods be brought forward by December 1992.
MOVED Alderman Phair - Bethel
That Alderman Bethel's motion be postponed to be dealt with the report on the terms of reference and implementation strategy for the Nurturing Neighbourhoods Pilot Project:
City Manager Parks Due: Apr.27/93
(Motion on the Floor: Alderman Bethel - McKay) That priority be given to the development of the nurturing concept approved by City Council in 1991, a public participation process to identify community needs and to devise strategies and action plans to resolve issues. That the Administration work with the Parks, Recreation and Cultural Advisory Board and the Edmonton Federation of Community leagues in the development of this program. That the process and criteria to prioritize neighbourhoods be brought forward by December 1992. FOR THE MOTION: OPPOSED: ABSENT:
CARRIED
Aldermen Bethel, Bolstad, Chahley, Gomberg, Hayter, Mason, Phair. Alderman Cavanagh. Mayor Reimer, Aldermen Campbell, Mackenzie, McKay, Staroszik.
MOVED Alderman Campbell - Bolstad
That the January 20, 1993 Parks and Recreation Department report be received as information.
City Manager Parks
FOR THE MOTION:
Aldermen Bethel, Bolstad, Cavanagh, Chahley, Gomberg, Hayter, Mason, Phair.
ABSEN1:
Mayor Reimer, Aldermen Campbell, Mackenzie, McKay, Staroszik.
City Council Minutes February 9, 1993
CARRIED
or,
F.2.
Parks, Recreation and Cultural Advisory Board (1993) Alderman Bethel on Nurturing Neighbourhoods Program.
MOVED Alderman Bethel - Mackenzie That a committee of four be established, with one member representing each of Parks, Recreation and Cultural Advisory Board, the Community and Family Services Advisory Committee, the Parks and Recreation Department and the Community and Family Services Department, to report back to Council in April, 1993 with terms of reference and an implementation strategy for the Nurturing Neighbourhoods Pilot Project.
AMENDMENT MOVED Alderman Phair - Bolstad That the committee be increased to five to include a representative from the Board of Health. FOR AMENDMENT: OPPOSED: ABSENT:
CARRIED
Aldermen Bethel, Bolstad, Chahley, Gomberg, Hayter, Mason, Phair. Alderman Cavanagh. Mayor Reimer, Aldermen Campbell, Mackenzie, McKay, Staroszik.
AMENDMENT MOVED Alderman Hayter - Chahley That the following phrase be added after the words "implementation strategy": "including costs and source of funding." FOR AMENDMENT: OPPOSED: ABSENT:
Aldermen Bethel, Bolstad, Chahley, Gomberg, Hayter, Mason, Phair. Alderman Cavanagh. Mayor Reimer, Aldermen Campbell, Mackenzie, McKay, Staroszik.
CARRIED
MOTION OF ALDERMAN BETHEL, AS AMENDED, PUT:
That a Committee of five be established, with one member representing each of Parks, Recreation and Cultural Advisory Board, the Community and Family Services Advisory Committee, the Parks and Recreation Department, the Community and Family Services Department and the Edmonton Board of Health, to report back to Council in April, 1993 with terms of reference and an implementation strategy including costs and source of funding for the Nurturing Neighbourhoods Pilot Project. FOR THE MOTION AS AMENDED: ABSENT:
City Council Minutes February 9, 1993
Aldermen Bethel, Belstad, Campbell, Cavanagh, Chahley, Gomberg, Hayter, Mason, Phair. Mayor Reimer, Aldermen Mackenzie, McKay, Staroszik.
City Manager Parks PRCA6 Community & Family Services Edm. Brd. of Health
CARRIED
406
ENCLOSURE III
NURTURING NEIGHBOURHOODS COMMITTEE
City Council, at their meeting, held February 9, 1993, directed that a committee of five be established to report back to Council in April, 1993 with terms of reference and an implementation strategy including costs and source of funding for the Nurturing Neighbourhoods Pilot Project. — The committee members are: Phone
Fax
1.
Alison Faid Community and Family Services Advisory Committee
439-5758
439-3124
2.
Mike Kroening Community and Family Services Dept. Glengarry Office
428-2414
496-5850
3.
Rachel Corbett Parks, Recreation and Cultural Advisory Board
432-0283
43106C6
4.
Tim Moorhouse Parks and Recreation Dept.
428-5817
428-5480
5.
Dr. Howell Edmonton Board of Health
482-9800
4824194
Appendix
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 1.
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 Kell 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.
1The Family violence Committee of the Mayor's Task Force on Soifer Cities reports: 'one abuser treated successfully can save society over $75,000 a year in health, social service and crtainal Justice costs.
A COMPARISON OF COMMUNITY BREAKDOWN AND THE HEALTHY COMMUNITY
HEALTHY COMMUNITY • • • • • • • •
alienation. Isolation resource depletion growing social problans 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