identifying gaps in local community economic development capacity in atlantic canada

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Identifying Gaps in Local Identifying Gaps in Local Community Economic Community Economic Development CapacityDevelopment Capacity

in Atlantic Canadain Atlantic Canada

Erin EdmundsonErin Edmundson · Jean-François Frenette· Jean-François Frenette

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OverviewOverview

• Literature Review

• Fieldwork– Communities visited

• Results & Discussion– Common themes– Recommendations

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CED DefinitionsCED Definitions

Community Economic Development

Community Economic Development Capacity

Community Economic Development Capacity Building

“CED is a process, not an end in itself. It provides a forum for which interested parties can join together in partnership arrangement to create new jobs and promote economic activity in a well-defined economic area.” (Savoie, 2000)

CED capacity is the ability to promote economic activity by coordinating and utilizing the assets available within one’s community. Assets are not only economic, but natural, social, human, political, cultural, built and financial in scope.

“[Increasing] the capacity of the community to establish and sustain a viable local economy. It enhances a community’s ability to respond to economic change and fosters the integration of economic, social and environmental objectives.” (Conference Board of Canada, 2000)

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ACOA & CEDACOA & CED

ACOA Community Development Vision & Outcome

Pan-Atlantic Framework for Community Development

Scope of work - Research and Analysis

“ACOA’s vision is to create viable and sustainable Atlantic Canadian communities that have the resources and capacity to take full responsibility and accountability for their own economic development.”

“Improved community economic infrastructure and strategic planning capacity leading to greater employment opportunities and economic growth in the Atlantic Region.”

“The primary focus of the framework will be to ensure that ACOA investments through all funding streams work together to support the ongoing work of communities and the region in achieving strategic economic development goals.”…” to ensure a cohesive, holistic, integrated approach to investments with the flexibility to respond to regional and community differences.”

• Best practices in Community Development with an emphasis on policies and programs targeting economic development in various communities.• Gap analysis of community development capacity and programs at work in Atlantic Canada.• Identify the key elements to be included in a Community Development framework for Atlantic Canada.

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LiteratureLiterature ReviewReview

CED Capacity Key Elements

“Community Capitals: A Tool for Evaluating Strategic Interventions and Projects” Flora, Emery, Fey and Bregendahl

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Literature ReviewLiterature ReviewCapitalCapital CED Capacity indicatorsCED Capacity indicators

HumanHuman Skills and education, volunteerism

SocialSocial Leadership, collaboration

PoliticalPolitical Elected officials support/help

NaturalNatural Natural resources, landscape

CulturalCultural Values, heritage, celebration

BuiltBuilt Infrastructure, buildings

EconomicEconomic Economic health/circumstances

FinancialFinancial Access to capital, tax base

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The following represent examples of CED capacity gaps:

• Strategic planning

• Collaboration

• Infrastructure

• etc.

CED Capacity Gaps?CED Capacity Gaps?

CED Capacity GapsCED Capacity Gaps

“The missing elements communities need to reach their full CED potential.”

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MethodologyMethodology

FieldworkFieldwork

• Communities Studied– Community Categories– Community Selection

• Interviews– Community Profiles– CED Capacity– CED Capacity Gaps

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Communities StudiedCommunities StudiedCategory Number

Category Communities

1 Rural/Remote Community/ Suffered Economic Shock

Borden-Carleton, Borden-Carleton, Grand Manan,Grand Manan,St. AnthonySt. Anthony

2 Rural/Remote Community/No Economic Shock

Woodstock, Tignish, Woodstock, Tignish, AntigonishAntigonish

3 Rural Community Adjacent to Urban Area/Suffered Economic Shock

Sydney MinesSydney Mines

4 Rural Community Adjacent to Urban Area/No Economic Shock

BouctoucheBouctouche

5 Francophone Community Tracadie-Sheila,Tracadie-Sheila, ChChéticampéticamp

6 Aboriginal Community Millbrook,Millbrook, Conne RiverConne River

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Communities StudiedCommunities StudiedCategory Number

Category Communities

1 Rural/Remote Community/ Suffered Economic Shock

St. AnthonySt. Anthony

2 Rural/Remote Community/No Economic Shock

TignishTignish

3 Rural Community Adjacent to Urban Area/Suffered Economic Shock

Sydney MinesSydney Mines

4 Rural Community Adjacent to Urban Area/No Economic Shock

MillbrookMillbrook

5 Francophone Community Tracadie-SheilaTracadie-Sheila

6 Aboriginal Community Conne RiverConne River

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Communities StudiedCommunities Studied

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Community Category 1Community Category 1

St. Anthony, NL

• CED Success Stories

• CED Capacity

• Identifying CED Gaps

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St. Anthony, NLSt. Anthony, NL

CapitalCapital CED Capacity CED Capacity evidenceevidence

HumanHuman Increasing skills base

SocialSocial Council and SABRI dedicated to CED

PoliticalPolitical Strong town council

NaturalNatural Northern NL—easy worldwide shipping access

CulturalCultural L’Anse au Meadows

BuiltBuilt Cold Storage, wharf

EconomicEconomic Community quota

FinancialFinancial ~$1.5M annually from shrimp royalty

Key Success Factors

• Innovation

• Committed groups

• Paid CED Manager

Community Capacity Gaps

• Communication

• Limited leaders

• Youth

• Rivalry between communities

Economic Performance from 1996-2001

• Earnings increased ~ 32%

• Unemployment rate changed from 17.6% to 17.4%

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Tignish, PEI

• CED Success

• CED Capacity


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Tignish, PEITignish, PEI


HumanHuman Leadership, paid manager

SocialSocial Co-operatives, collaboration

PoliticalPolitical Municipal government

NaturalNatural Fishing, Irish moss, wind energy

CulturalCultural French/Irish, Catholics, heritage

BuiltBuilt Coastal drive

EconomicEconomic Service centre, locally owned businesses

FinancialFinancial Government funding, Credit Union

Key Success Factors

• Tignish Initiatives Corporation

• Co-operatives

• Tignish Centennial Arena


• Research/Planning

• Regional thinking

• CED umbrella

• Skills development


• Earnings decreased ~7%


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Sydney Mines, Cape Breton, NS

• CED Success

• CED Capacity


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Sydney Mines, NSSydney Mines, NS


HumanHuman Volunteers

SocialSocial Leadership, community groups, partnerships

PoliticalPolitical MLA, CBRM

NaturalNatural Fossils, mining history

CulturalCultural Museum, annual festival

BuiltBuilt Revitalized infrastructure

EconomicEconomic High business survival rate

FinancialFinancial Funding (ECBC, CBCEDA)

Key Success Factors

• Sydney Mines Renewal Association

• Sydney Mines Heritage Society

• Community Centre


• Knowledge of government programs

• Community groups skills development

• Strategic planning and collaboration


• Earnings increased ~13%

• Unemployment rate changed from 26.2% to 21%

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Millbrook, NS

• CED Success

• CED Capacity


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Millbrook First Nations, NSMillbrook First Nations, NS

CapitalCapital CED Capacity evidenceCED Capacity evidence

HumanHuman Skills level is increasing as many youth attend post-secondary

SocialSocial Innovative Band Council, Community buy-in

PoliticalPolitical Innovative Band Council Structure

NaturalNatural Near Halifax International Airport, Located on HWY102

CulturalCultural First Nations Heritage

BuiltBuilt Truro Power Centre, wharf/fishing boats

EconomicEconomic Many partnerships with Power Center businesses

FinancialFinancial Large annual profit re-invested in community

Key Success Factors

• Band Council Initiative

• Trust in Band Council

• Location


• Mentorship

• Skills development

• Planning



• Unemployment changed from 10.9% to 18.2%

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Tracadie-Sheila, NB

• CED Success

• CED Capacity


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Tracadie-Sheila, NBTracadie-Sheila, NB


HumanHuman Leadership, skills

SocialSocial Community groups, collaboration

PoliticalPolitical Municipality, MLA

NaturalNatural Fisheries, forestry, beaches, rivers

CulturalCultural Acadian, heritage, festivals

BuiltBuilt Infrastructure, industrial park

EconomicEconomic Regional service centre

FinancialFinancial Government funding, investors

Key Success Factors

• Shareholders grouping

• Development Agencies

• Tourism and Culture


• Strategic planning

• Information sharing

• Limited volunteer base




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Conne River, NL

• CED Success

• CED Capacity


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Conne River, NLConne River, NL


HumanHuman Skills and education

SocialSocial Strong leadership, band council, community cohesion, collaboration

PoliticalPolitical Band accountability, Federal support

NaturalNatural Fisheries, outfitting, aquaculture, nature park

CulturalCultural Powwow grounds, Arts & Exploration Centre, Crafts

BuiltBuilt Community services

EconomicEconomic Low band unemployment, high average income

FinancialFinancial Ability to access funding, band owned businesses

Key Success Factors

• Leadership

• Skills and education

• Cultural & traditional values


• Cultural understanding

• Band regulations

• Area population declining

• Tourism Infrastructure


• Earnings increased by ~3%

• Unemployment changed from 39% to 44%

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Results & DiscussionResults & Discussion

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CapitalCapital CED Capacity ElementsCED Capacity Elements

HumanHuman Skills & Education: post-secondary institutions, entrepreneurship spirit; Volunteerism

SocialSocial Leadership: Committed groups, innovation, paid CED manager; Partnerships; Cooperatives

PoliticalPolitical Support from all levels of government; Government led initiatives

NaturalNatural Location: Tourism traffic, transportation corridor or isolation; Natural resources: fisheries, forest, wind, parks

CulturalCultural Tourism & Heritage opportunities: Festivals, museums

BuiltBuilt Revitalized infrastructure: roads, sidewalks, Internet access

EconomicEconomic Service centre; Market forces; Strong industries

FinancialFinancial Funding: access to capital, investors, Credit Unions

Overall Success FactorsOverall Success Factors

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CapitalCapital CED Capacity GapsCED Capacity Gaps

HumanHuman *Skills development: Labour force, CED practitioners; Out-migration of youth

SocialSocial *Planning: strategic planning, research; *Funding: understanding the funding system, applying for funding; *3C’s; Limited volunteer base;

PoliticalPolitical *Funding: Renewed funding

NaturalNatural N/A

CulturalCultural N/A

BuiltBuilt *Infrastructure

EconomicEconomic N/A

FinancialFinancial Funding: Tax base, *No paid CED manager

Overall GapsOverall Gaps

*Gaps which fall under ACOA’s mandate

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BUTBUT…

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Atlantic Canadian SuccessesAtlantic Canadian Successes

Leadership– All communities have

groups or individuals dedicated to CED

– New ideas have brought prosperity to many Atlantic Canadian communities

– The presence of a paid CED manager guarantees dedicated hours toward CED

Location– Those communities on a

transportation corridor have a opportunity to use their strategic location to their advantage

Other– Entrepreneurial spirit has

created many opportunities for economic growth

– Through fostering healthy partnerships, many groups can learn from each other

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Atlantic Canadian GapsAtlantic Canadian Gaps

Strategic Planning– Many have Regional

Strategic Plans, but few at the community level

3C’s– Between CED groups– Between groups/

communities and REDO’s– Between communities and

other surrounding communities

Out-migration of Youth– Few students are returning

to their rural homes after post-secondary

Volunteers– Limited volunteer base,

causing many volunteers to sit on multiple boards and committees

Few Paid CED Managers – Limited communities had a

paid CED manager

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Rural/Remote/Shock (1)

(a) Successes1. Leadership

– Committed Individuals/Groups– Paid CED manager– Innovation

2. Location– Tourism traffic

(b) Gaps1. Funding

– Applying for funding2. Out-migration of youth3. Limited volunteer base4. Skills development

– Labour force

Rural/Remote/No Shock (2)


– Committed individuals/groups– Paid CED manager

2. Location– Service centre– Transport corridor– Tourism traffic

(b) Gaps1. 3C’s2. Planning

– Strategic planning 3. Infrastructure

Remote CommunitiesRemote Communities

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Rural/Adjacent/Shock (3)


– Committed groups

2. Community cohesion

(b) Gaps1. Planning

– Strategic planning

2. Funding

– Applying for funding

3. 3C’s

4. Out-migration of youth

5. Skills development.

Adjacent CommunitiesAdjacent CommunitiesRural/Adjacent/No Shock (4)


– Committed groups/individuals

2. Location– Service centre

(b) Gaps1. Out-migration of youth

2. Limited volunteer base

3. Planning– Strategic planning

4. 3C’s

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Atlantic Canada Community Profiles

• Search by Regional Map

• Search by Region

• Search by Community

Region

Community

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Please select province

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New Brunswick

Please select region

ChaleurChaleur

37Please select community

Chaleur

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Belledune, N.-B.

Next

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Belledune, N.-B.

Etc.Find community category

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Community CategoryBelledune, N.-B.

Rural/Urban AdjacentShock: Yes

Similar communities

Sydney Mines(77.2%)

Community “X”(64.9%)

Etc…

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Community Capacity

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Community Capacity

Submit

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Individual CommunitiesIndividual Communities

0%10%20%30%40%50%60%70%80%90%

100%

Gaps

Capacity

Types of CapitalTypes of Capital

Level

Level

Individual CED Capacity Successes and Gaps ModelExample: Community “X”

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ConsiderationsConsiderationsOf the communities studied:Of the communities studied:• Almost all communities lack volunteers and the burden always

seems to fall on the same people.• Almost all successful communities have found their identity and built

upon it.• Half of the communities with REDO’s have not developed their own

independent CED groups.• One third of the communities have been successful in recycling

assets through CED projects.• Communities with a paid CED manager seem to have a better

understanding of CED.• Most communities (or groups) struggle with the funding process.• Furthermore, when assessing CED capacity gaps:

– The needs of Francophone communities do not appear to be different than those of English speaking communities

– The needs of Aboriginal communities may go beyond those of other communities

• Limitations: Need for more comprehensive research

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Community Informants Community Informants RecommendationsRecommendations

– Make the funding application process more user-friendly and educate community leaders, CED groups and other potential users on the programs available.

– Provide facilitators to communities to teach CED groups about strategic planning, etc.

– Provide funding for projects for more than one year. Sometimes a year isn’t long enough for projects to stand on their own.

– Avoid cookie cutter approaches to CED.

– Assist with “sister communities”– pair struggling communities with a similar successful community.

– Invest in access to training programs for CED practitioners.

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– Rethink the 10% contribution from small communities who have goals, visions, plans.

– Try to align requirements of provincial governments and ACOA to avoid duplication (often many similar studies have to be completed for each government level, but one document is not transferable to each).

– Increase level of relationship with other two levels of government when developing and/or delivering programs.

– Try to reduce the number of projects that have to focus on bettering the environment—projects that don’t damage the environment should be considered too.

Community Informants Community Informants Recommendations continued…Recommendations continued…

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RecommendationsRecommendations

1. There are a number of Capacity Gaps in Atlantic Canada that ACOA could focus on. These include: Communication, Cooperation, Coordination; Planning; the Funding Process; Lack of Volunteers; Skills Development.

2. CED capacity in Atlantic Canadian communities should be assessed using a model that would allow for a more systematic approach. This could help focus on strengths, identify gaps, and tailor approaches to communities’ specific needs.

3. A clearer role for the REDOs’ responsibilities in CED capacity in Atlantic Canada is required.

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Remember each community is unique, and its individual characteristics must be taken into consideration– How do we approach CED strategically, while keeping this fact

in mind?

There is a need to assess CED groups’ capacity before and after they receive funding (during funding as well)– How should this be addressed without incurring further “red

tape”?

Communities find it difficult to know where to turn to for funding– How do we educate the public (groups involved in CED) about

CED programs available?

ConclusionsConclusions

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Many communities would like to increase their volunteer base but few have specific plans in place– Can ACOA encourage participation in CED groups (through leadership

skills development, mentorship programs, etc.)?

Most capacity gaps are found in social capital– What should ACOA’s role be in developing the capacities necessary for

CED development outside of financial, economic and built capacities?

Many communities identified political capital as an important element in CED capacity– What is the appropriate role for political players in building CED

capacity?

Many government departments should be involved in building the capacity of communities– How should ACOA coordinate its capacity building initiatives with

others?

Conclusions continued…Conclusions continued…

identifying gaps in local community economic development capacity in atlantic canada

Documents

ced potential

examples of ced capacity

nscommunity category

peicommunity category

nbcommunity category

redosbetween communities

nlcommunity category

cedlocationthose communities