Whither Canada’s Whither Canada’s Federal Urban Agenda?Federal Urban Agenda?

Neil BradfordNeil Bradford

Huron University CollegeHuron University College

November 23, 2006November 23, 2006

Presentation for ONRIS PanelPresentation for ONRIS Panel

““Other Perspectives on City Regions”Other Perspectives on City Regions”

Whither Canada’s Whither Canada’s Federal Urban Agenda?Federal Urban Agenda?

Four ThemesFour Themes1.1. Context: The “New Localism”Context: The “New Localism”2.2. National Urban Frameworks: Explicit Urban Policy National Urban Frameworks: Explicit Urban Policy oror

Implicit Urban Presence?Implicit Urban Presence?3.3. Canada’s Shifting Urban Agenda: Cities in Deep Canada’s Shifting Urban Agenda: Cities in Deep

Federalism, Cities in Open FederalismFederalism, Cities in Open Federalism4.4. Implications for Federal Economic Development PolicyImplications for Federal Economic Development PolicyThe overarching issue …The overarching issue …

““We see that the Conservative government has not We see that the Conservative government has not abandoned the cities file, but we also sense that its abandoned the cities file, but we also sense that its approach is quite different from that of the former approach is quite different from that of the former Liberal governmentLiberal government.”.”

Context: The New Context: The New Localism (1)Localism (1)

Political Economy DriversPolitical Economy Drivers   Spatial concentrations of exclusionSpatial concentrations of exclusion Geographical clusters of innovationGeographical clusters of innovation Issues of Issues of national consequencenational consequence playing out at playing out at

the urban scalethe urban scale

Canada well represented in this literature …Canada well represented in this literature …

((T. Courchene, D. Wolfe, M. Gertler, Conference Board T. Courchene, D. Wolfe, M. Gertler, Conference Board of Canada, Greater Toronto United Way)of Canada, Greater Toronto United Way)

Context: The New Context: The New Localism (2)Localism (2)

Public Policy ImplicationsPublic Policy Implications

   Spatially sensitive interventionsSpatially sensitive interventions Local knowledge, networks, and assetsLocal knowledge, networks, and assets Devolution to municipalities and community-Devolution to municipalities and community-

based organizationsbased organizations

Canada well represented in this literature …Canada well represented in this literature …  

(W. Magnusson, C. Leo, Federation of Canadian W. Magnusson, C. Leo, Federation of Canadian Municipalities, CPRN, Caledon Institute) Municipalities, CPRN, Caledon Institute)

National Policy Responses National Policy Responses to the New Localismto the New Localism

European Institute for Comparative Urban European Institute for Comparative Urban Research (EURICUR) studying major trends:Research (EURICUR) studying major trends:

Tracking changes in national responses to the New Tracking changes in national responses to the New

Localism between 1998 and 2004Localism between 1998 and 2004 Comparing urban policy frameworks in 15 EU Comparing urban policy frameworks in 15 EU

member states member states Distinguishing between those countries with an Distinguishing between those countries with an

explicit explicit national urban policy and those with an national urban policy and those with an implicit implicit sectoral approachsectoral approach

Berg, L. van den, E. Braun and J. van der Meer (2004), Berg, L. van den, E. Braun and J. van der Meer (2004), National Urban Policies in the European UnionNational Urban Policies in the European Union, Euricur, , Euricur, Rotterdam.Rotterdam.

National Responses (1): National Responses (1): Explicit Urban PolicyExplicit Urban Policy

““Explicit National Urban Policy” Explicit National Urban Policy”

Cities seen as the engine of the national Cities seen as the engine of the national economyeconomy

The motor can be stalled by social The motor can be stalled by social inequality or environmental degradationinequality or environmental degradation

Comprehensive policies required to Comprehensive policies required to integrate sectors and join-up actors at integrate sectors and join-up actors at different scales (national/regional/local) different scales (national/regional/local)

National Responses (2): National Responses (2): Implicit Urban PresenceImplicit Urban Presence

2.“Implicit National Urban Presence” 2.“Implicit National Urban Presence” 

Awareness that policies in sectors such as housing, transportation, immigration and environment have a substantial impact in cities

  Consideration should be given to the urban

consequences of upper level government policies

Consult with local representatives to bring an urban perspective to sectoral policies

Frameworks envision different roles Frameworks envision different roles for municipalities and community-for municipalities and community-based organizations (CBOs) based organizations (CBOs)

National Urban Policy: Shared Governance National Urban Policy: Shared Governance    National/federal government engages with National/federal government engages with

municipalities and CBOs in policy design, municipalities and CBOs in policy design, implementation, and evaluationimplementation, and evaluation

   Multi-level governance recognizes shared mandates Multi-level governance recognizes shared mandates

and resource dependencies of different partnersand resource dependencies of different partners

Horizontal collaboration in government departmentsHorizontal collaboration in government departments   Inter-scalar policy learning via joint dialogue, pilot Inter-scalar policy learning via joint dialogue, pilot

projects, and community demonstrationsprojects, and community demonstrations

Different Roles (2) Different Roles (2)

National Urban Presence: Project Implementation National Urban Presence: Project Implementation and Service Deliveryand Service Delivery

National/federal government consults or contracts with National/federal government consults or contracts with municipalities and CBOs in service deliverymunicipalities and CBOs in service delivery

Public-private partnerships for physical infrastructure Public-private partnerships for physical infrastructure and “urban flagship projects” (Expos or Olympics)and “urban flagship projects” (Expos or Olympics)

   Community development is a local responsibilityCommunity development is a local responsibility   Federal constitutions viewed as “hard barriers” to Federal constitutions viewed as “hard barriers” to

explicit national urban policyexplicit national urban policy

Examples of the Frameworks in Examples of the Frameworks in Action (1)Action (1)

Urban Policy and Shared Governance:Urban Policy and Shared Governance:

UK: National Strategy for Neighbourhood RenewalUK: National Strategy for Neighbourhood Renewal Netherlands: Big Cities PolicyNetherlands: Big Cities Policy France: Contrats de VilleFrance: Contrats de Ville Belgium: Large City PolicyBelgium: Large City Policy

Political leadership and central agency driver for Political leadership and central agency driver for sustained, intensive national-local sustained, intensive national-local engagement.engagement.

Examples of the Frameworks in Examples of the Frameworks in Action (2)Action (2)

Urban Presence and Project Urban Presence and Project Implementation/Service Delivery:Implementation/Service Delivery:

SpainSpain AustriaAustria IrelandIreland PortugalPortugal

National/federal urban engagement is sector National/federal urban engagement is sector specific and mostly top-down. specific and mostly top-down.

The European Trend: From Presence The European Trend: From Presence to Policyto Policy

EURICUR in its recent update finds more EURICUR in its recent update finds more European countries seeking an explicit European countries seeking an explicit urban policy (unitary and federal states urban policy (unitary and federal states alike)alike)

Describes innovations in Germany, Finland, Describes innovations in Germany, Finland, Sweden, Denmark, Italy, and Portugal.Sweden, Denmark, Italy, and Portugal.

   Notes EU spatial programming as catalyst Notes EU spatial programming as catalyst

for more explicit national urban policy.for more explicit national urban policy.

Where does Canada fit?Where does Canada fit?

The European trends and EURICUR research The European trends and EURICUR research offer perspective on Canada’s urban agenda. offer perspective on Canada’s urban agenda.

Questions arising …Questions arising …

Are there two urban visions that correspond to the Are there two urban visions that correspond to the EURICUR categories?EURICUR categories?

Are we presently moving from a period of Are we presently moving from a period of experimentation with federal urban policy to the experimentation with federal urban policy to the more familiar ground of a federal urban presence?more familiar ground of a federal urban presence?

The (Old) New Deal for Cities and The (Old) New Deal for Cities and Communities Communities

Vision: Vision: ““Integrated approaches to policy-making are unavoidable when Integrated approaches to policy-making are unavoidable when

serious policy outcomes are to be met.” (External Advisory serious policy outcomes are to be met.” (External Advisory Committee on Cities and Communities, 2006)Committee on Cities and Communities, 2006)

Place-based Policy, Multi-level governance, and the Four Pillars of Place-based Policy, Multi-level governance, and the Four Pillars of Urban SustainabilityUrban Sustainability

  Main Instruments: Main Instruments: Federal InvestmentsFederal Investments: Physical and Social Infrastructure: Physical and Social Infrastructure Fiscal TransfersFiscal Transfers: Gas Tax and ICSPs : Gas Tax and ICSPs Multi-level governanceMulti-level governance: Urban Development Agreements, SCPI, : Urban Development Agreements, SCPI,

UAS, Canada’s Innovation StrategyUAS, Canada’s Innovation Strategy Community DevelopmentCommunity Development: Social Economy, Action for : Social Economy, Action for

Neighbourhood Change, Inclusive Cities CanadaNeighbourhood Change, Inclusive Cities Canada

Cities in “Deep Cities in “Deep Federalism”Federalism”

Social, economic, environmental policies Social, economic, environmental policies must reconcile national standards and must reconcile national standards and community differencescommunity differences

One size does not fit all, tailor general One size does not fit all, tailor general policies to the “conditions on the ground”, policies to the “conditions on the ground”, no one government can go it alone no one government can go it alone

Join up four actors (three levels of Join up four actors (three levels of government and civil society) in “a nexus of government and civil society) in “a nexus of negotiation and compromise unencumbered negotiation and compromise unencumbered by the rigidity of constitutional provisions” by the rigidity of constitutional provisions” (Christopher Leo, “Deep Federalism”, 2006) (Christopher Leo, “Deep Federalism”, 2006)

The (Old) New Deal and Deep The (Old) New Deal and Deep Federalism: Ottawa’s Explicit Urban Federalism: Ottawa’s Explicit Urban PolicyPolicy

Commentary …Commentary …““To shape better cities and strong communities, federal To shape better cities and strong communities, federal

capacities are needed to make connections, provincial and capacities are needed to make connections, provincial and territorial powers are needed for strategic integration and territorial powers are needed for strategic integration and municipal abilities are needed to engage with citizens and municipal abilities are needed to engage with citizens and deliver change locally. Cooperative relationships are deliver change locally. Cooperative relationships are essential … working with [municipalities] and civil society essential … working with [municipalities] and civil society in new governance partnerships tailored to city-regions in new governance partnerships tailored to city-regions and neighbourhoods.” and neighbourhoods.”

- - External Advisory Committee on Cities and Communities, External Advisory Committee on Cities and Communities, 20062006

The New Conservative Urban The New Conservative Urban ApproachApproach

Vision:Vision:Prime Minister Harper says …Prime Minister Harper says … ““We know our nation’s future depends on enlightened We know our nation’s future depends on enlightened

urban statecraft.” ( Prime Minister Harper, World Urban urban statecraft.” ( Prime Minister Harper, World Urban Forum, June 19 2006)Forum, June 19 2006)

But …But …

““Ottawa has stuck its nose into provincial and local Ottawa has stuck its nose into provincial and local matters into areas where they didn’t have much matters into areas where they didn’t have much expertise.”  (Prime Minister Harper, Federation of expertise.”  (Prime Minister Harper, Federation of Canadian Municipalities, June 2 2006) Canadian Municipalities, June 2 2006)   

The New Conservative Urban The New Conservative Urban ApproachApproach

Main Instruments:Main Instruments: Federal InvestmentFederal Investment: Major Urban (physical) : Major Urban (physical)

Infrastructure Projects-- The Asia-Pacific Gateway Infrastructure Projects-- The Asia-Pacific Gateway and Corridor and Corridor

Federal RegulationFederal Regulation: Safe Cities – Sentencing : Safe Cities – Sentencing Reforms Reforms

Fiscal TransfersFiscal Transfers: Address Federal-Provincial Fiscal : Address Federal-Provincial Fiscal Imbalance – Provinces meet their local Imbalance – Provinces meet their local responsibilitiesresponsibilities

ConsultationConsultation: Federation of Canadian : Federation of Canadian Municipalities and Big City Mayors Caucus -- Local Municipalities and Big City Mayors Caucus -- Local perspective in relevant areas of federal policy perspective in relevant areas of federal policy jurisdiction including budget makingjurisdiction including budget making

Cities in “Open Cities in “Open Federalism”Federalism”

Levels of government “policy bound” by Levels of government “policy bound” by their constitutional competenciestheir constitutional competencies

Section 92 (8): Provincial responsibility for Section 92 (8): Provincial responsibility for “Municipal Institutions” “Municipal Institutions”

Inter-governmental relations transparent, Inter-governmental relations transparent, consistent, and orderly – avoid side deals, consistent, and orderly – avoid side deals, boutique programs, ad hoc tri-level boutique programs, ad hoc tri-level agreements agreements

Fiscal balance – strong provincesFiscal balance – strong provinces The “Quebec Model” for urban policy (Prime The “Quebec Model” for urban policy (Prime

Minister Harper, FCM Address, June 2, 2006)Minister Harper, FCM Address, June 2, 2006)

The New Conservative Approach and The New Conservative Approach and Open Federalism: Ottawa’s Implicit Urban Open Federalism: Ottawa’s Implicit Urban

PresencePresence

Commentary …Commentary …

““Such steps won’t advance a federal urban agenda Such steps won’t advance a federal urban agenda quickly, and advocates of an increased federal role quickly, and advocates of an increased federal role in urban matters are likely to be dissatisfied. And in urban matters are likely to be dissatisfied. And these steps will do little to advance the these steps will do little to advance the Conservative Party’s appeal in the large cities, or to Conservative Party’s appeal in the large cities, or to demonstrate the party’s awareness of the demonstrate the party’s awareness of the challenges facing urban Canada. Yet, it would be challenges facing urban Canada. Yet, it would be unfair to characterize such steps as a retreat from a unfair to characterize such steps as a retreat from a federal urban presence.”federal urban presence.”

- Loleen Berdahl, Canada West Foundation,.- Loleen Berdahl, Canada West Foundation,.   

What are the implications for federal What are the implications for federal economic development policy?economic development policy?

The same trend evident as Conservatives The same trend evident as Conservatives redefine the federal agenda …redefine the federal agenda …

Industry Canada Memo:Industry Canada Memo:The words “innovate” and “innovation” The words “innovate” and “innovation”

expunged from federal policy discourse expunged from federal policy discourse (Toronto Star 14/11/06)(Toronto Star 14/11/06)

The Conservative Industry Minister:The Conservative Industry Minister:““I see my role … as a defender of I see my role … as a defender of

economic freedom and open economic freedom and open competition” (Economic Club 15/11/06)competition” (Economic Club 15/11/06)

Economic Development in Economic Development in Open CompetitionOpen Competition

Federal role appears confined to Federal role appears confined to macro- level framework measuresmacro- level framework measures

This means:This means: Populist tax creditsPopulist tax credits Industry Deregulation Industry Deregulation Reduced trade barriersReduced trade barriers 3Ps for Physical Infrastructure 3Ps for Physical Infrastructure

Economic Development in Economic Development in Open CompetitionOpen Competition

This does not mean federal investing or This does not mean federal investing or partnering in the (old) “knowledge and partnering in the (old) “knowledge and community infrastructure of innovation” community infrastructure of innovation”

September 25 cost savings:September 25 cost savings:- Industrial Programs including Technology Partnerships CanadaIndustrial Programs including Technology Partnerships Canada

- Workplace Skills Strategy- Workplace Skills Strategy- Adult learning and Literacy Skills Program- Adult learning and Literacy Skills Program- Social Economy InitiativeSocial Economy Initiative- CPRN (ideas for Deep Federalism)CPRN (ideas for Deep Federalism)

Activities that no longer reflect federal Activities that no longer reflect federal priorities, serve only “third party interests”, priorities, serve only “third party interests”, or can be taken-up by others.or can be taken-up by others.

CONCLUDING THOUGHTSCONCLUDING THOUGHTS

Each national urban approach (policy or presence) Each national urban approach (policy or presence) has implementation challengeshas implementation challenges

ExplicitExplicit Urban Policy /Deep Federalism Urban Policy /Deep Federalism Complex collaborations require cultural Complex collaborations require cultural

shifts from governments and community-shifts from governments and community-based actors to “let go of power” and “join based actors to “let go of power” and “join up resources” up resources”

Building new trust relations involve Building new trust relations involve significant “transaction costs” that can significant “transaction costs” that can reduce policy effectivenessreduce policy effectiveness

Implementation Challenges Implementation Challenges (2)(2)

Implicit Urban Presence/Open FederalismImplicit Urban Presence/Open Federalism

Confining each actor’s participation to “core Confining each actor’s participation to “core competencies” may miss the cross-sectoral competencies” may miss the cross-sectoral and inter-scalar synergies necessary for and inter-scalar synergies necessary for robust solutions to complex challenges.robust solutions to complex challenges.

The Federal government may become The Federal government may become isolated from from local knowledge and isolated from from local knowledge and community-based innovations.community-based innovations.