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published by the canadian institute of pl anners | publié par l’institut canadien des ur banistes
suMMer /éte 2016
vol. 56 no. 2
Financer
les Villes
FiNaNciNG
ciTiES
publication agreeMent 40064978
www.cip-icu.ca
contents
Financing cities |
sommaire
Financer les villes
plan canada | summer · éte 2016 | vol. 56 no. 2
columns articles
4 a Word From the President / 16 Financing canadian cities 32 PPPs and the
le mot de la Présidente in the 21st century Financing oF cities
Should cities be given access to more How are public-private partnerships
6 Planner uPdate / sources of revenue? being used to finance and deliver
l’actualité des urbanistes By Enid Slack PhD large infrastructure projects in
Canadian cities?
11 index oF advertisers 18 Financing municiPal
By Matti Siemiatycki PhD
inFrastructure: the basics
15 From the editorial The critical links between the needs 35 Funding mechanisms For
board / message du comité of residents, the priorities of local building transit in ontario
de rédaction government, what gets built and who Recent actions of the senior
pays for it. levels of government may have
47 q & a With…Jay Wollenberg
By Brian Conger MPP, RPP, MCIP and significant impact on funding transit
50 the learning curve /
Almos Tassonyi PhD infrastructure in Ontario.
l’acquisition du savoir By Craig Binning MPhil and
22 canadian cities:
Jaclyn Hall, BURPI
Present structure and
52 FelloWs’ corner /
Possible alternatives 38 hoW a Financing tool
du côté des FelloWs
Balancing demands and resources in accelerated edmonton’s
municipal financing has led to calls for doWntoWn develoPment
additional sources of funding. But are Renewed interest in Downtown
3
there other options? Edmonton is being financed in part
By Melville McMillan PhD through an innovative solution.
By Heather Chisholm MSc, RPP, MCIP
25 using land value
and Tom Beck MScPl, RPP, MCIP
pl an canada | summer · éte 2016
caPture tools in
6 canadian municiPalities
Local governments need to find
new revenue sources permitted
by provincial.
42 integrating land use
Planning and develoPment
Finance to imProve local
government sustainability
By David Amborski MSc, MA, MCIP, RPP The predominant land development
form in Canada is still lower density
28 missed oPPortunity: municiPal
greenfield over higher density
level Fuel tax For alberta
and infill.
38
A carbon tax in Alberta may be a
By Kim Fowler MCIP, RPP
means to reduce greenhouse gas
emissions and drive economic growth.
By Amrita Singh PhD
A WO R D F R O M T H E P R E S I D E N T |
l e m ot d e l a P r é s i d e n t e
H a z e l c H r i s t y M B A , M C I P, R P P
P R e s I d e n t, C A n A d I A n I n s t I t u t e o f P l A n n e R s /
PRésIdente InstItut CAnAdIen des uRBAnIstes
Plans in action
C
IP is entering a new era have begun the task of rebuilding
with the adoption of relationships and examining new
bylaws to establish a new tools to for policy improvements.
governance model. The Through international outreach
road to this moment in CIP’s history activities, CIP is again looking to share
has been thoroughly discussed and Canadian expertise with planning
debated by the planning membership colleagues worldwide.
over the past year and the new This issue of Plan Canada is about
way forward is about inclusivity financing cities, a task that requires
and independence. As we put innovative thinking and cooperation
HAzEl CHRISTy, MBA,
MCIP, RPP plans in place for celebrating CIP’s at all levels in Canada’s changing
President, Canadian centenary in 2017, the Institute is more infrastructure environment. The role of
Institute of Planners /
Présidente Institut member-focused and has experienced planners becomes even more integral
canadien des urbanistes more member engagement than as the federal government works to
ever before. close the gap between infrastructure
It is crucial for planners to remain needs and the challenges of funding
engaged in the work of their national at the municipal level.
representative body. Nominations CIP will be forwarding copies of
for a new Board of Directors are this edition of Plan Canada to mayors
It is crucial for underway, which, for the first time, across Canada, which highlights
planners to remain will be elected by individual members the evolving role of planners and
engaged in the work across the country. The new board how they can help to advocate for
of their national will have a national and international stronger and healthier communities.
representative body. perspective, and will be responsible I encourage everyone to read this
for keeping CIP focused on adding important edition.
value to its members, the planning As our national conference in
4 profession, stakeholder groups, and Québec draws closer, I would like
Canadians, while working toward thank the membership at large for
a more productive partnership their commitment to move forward. I
that complements the role of the have spoken to and shared emails with
Provincial and Territorial Institutes and many planners over the past months
pl an canada | summer · éte 2016
Associations (PTIAs). and the dialogue has been invaluable.
CIP is working on a number of As always, if you have any
exciting initiatives. Committees questions or comments, please email
have welcomed new members who communications@cip-icu.ca. ■
À PIED D’OEUvRE
Plan Canada is the official publication of
the Canadian Institute of Planners
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Règlement administratif prometteurs. Les comités se sont Plan Canada is published quarterly: March, June, September,
December. All rights reserved. Reproduction in whole or
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l’ICU inaugure une nouvelle ère. les membres et les interlocuteurs et Plan Canada paraît quatre fois par année, en mars,
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Le cheminement vers ce moment d’examiner les possibilités de bonifier La reproduction en tout ou en partie de cette publication sans
historique pour l’ICU a été ponctué les politiques. Par ses activités de le consentement écrit de l’Icu est strictement interdite. Les
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profondeur par les membres au cours de nouveau à faire valoir le savoir-faire
Editorial Board/Comité de rédaction
de la dernière année, et la nouvelle canadien auprès de collègues Barbara A. Myers mcp, mcIp, mppI, rpp Chair/Présidente
Sandeep Agrawal phd, aIcp, rpp, mcIp
orientation est donnée sous le signe de urbanistes partout dans le monde. Richard Borbridge rpp, mcIp
l’inclusion et de l’indépendance. Alors Le présent numéro de Plan Canada Jonathan Denis-Jacob rpp, mcIp
Dawn Seetaram rpp, mcIp
que nous nous apprêtons à en célébrer porte sur le financement de nos cités Timothy Shah ma (Planning)
le centenaire, l’Institut est plus que et villes, un enjeu qui exige d’innover
Editor / Rédactrice en chef
jamais axé sur ses membres et s’est au niveau des idées et de collaborer Michelle Brynkus
ouvert plus que jamais au dialogue. à tous les niveaux dans le secteur
Il est essentiel pour les urbanistes canadien de l’infrastructure qui évolue For details on how to subscribe visit www.cip-icu.ca/Resources/
Plan-Canada.Legal Deposit/Dépôt légal National Library of
de suivre de près les travaux de rapidement. Les urbanistes jouent un Canada Bibliothèque nationale du Canada Bibliothèque
l’organisme national qui les représente. rôle encore plus crucial alors que le nationale du Québec
ISSN 0032-0544
Les mises en candidature du prochain gouvernement fédéral travaille à faire
Publications Mail/Registration #/no de publication/
conseil d’administration sont ouvertes converger les besoins en infrastructure distribution postale : 40064978
et, pour la première fois, ce sont les et les défis du financement au Published June 2016/CIP-Q0216/2376
membres de partout au pays qui à niveau municipal.
titre individuel les éliront. Le nouveau L’ICU fera parvenir un exemplaire Published by/Publié par:
conseil d’administration sera attentif du présent numéro de Plan Canada
aux enjeux nationaux et internationaux. aux maires d’un peu partout au pays,
1630 Ness Avenue, Suite 300,
Il lui incombera d’assurer que l’ICU car il souligne l’évolution du rôle Winnipeg, MB r3J 3X1
Tel/Tél. : 800.665.2456 | Fax/Téléc. : 204.947.2047
soit une source de valeur ajoutée des urbanistes et la façon dont ils www.naylor.com
pour ses membres, pour la profession peuvent contribuer à des collectivités Managing Editor/Directrice de la rédaction
Andrea Németh
d’urbaniste, pour les groupes de plus fortes et plus saines. Je vous
Group Publisher/Éditrice de groupe
parties intéressées et pour l’ensemble encourage tous et toutes à lire cet Angela Caroyannis
des Canadiens et des Canadiennes. important numéro. Project Manager/Directrice de projet
5
Kim Davies
Il s’efforcera aussi d’entretenir un Alors que nous approchons de la
Marketing Associate/Adjointe à la commercialisation
partenariat plus productif et de jouer tenue de notre congrès national à Margaux Tomac
un rôle complémentaire à celui des Québec, je tiens à remercier l’ensemble Publication Director/Directrice de la publication
Candace Bremner
associations et instituts provinciaux et des membres pour son engagement à
pl an canada | summer · éte 2016
Sales Representative/Représentant de vente
territoriaux (AIPT). aller de l’avant. Au cours des derniers Jason Currie
mois, j’ai parlé et échangé des courriels Layout & Design/Mise en page et conception graphique
Sharon Lynne, alawind creative direction
Il est essentiel pour les avec bon nombre d’urbanistes et ce
Cover Design
dialogue a été d’une grande valeur.
urbanistes de suivre Et comme d’habitude, si vous avez
Calvin Harding
©2016 Naylor (Canada) Inc. All rights reserved. The contents
de près les travaux de des questions ou des commentaires,
of this publication many no be reproduced in whole or in part
without the consent of the publisher.
l’organisme national qui n’hésitez pas à nous en faire part à
les représente. communications@cip-icu.ca. ■
P l A N N E R U P DAT E |
l’ac t ua l i t é d e s u r b a n i s t e s
TIMEly inFormation
T
he Canadian Institute of Planners is working hard to bring you timely information.
Check your email on the second Wednesday of every month for CIP’s The
The Monthly Plan-It │ The Place for Planning News www.cip-icu.ca
Francais
In this edition:
Special Meeting to Adopt Bylaws │ CIP Board of Directors Election│ Monthly Plan-It.
│ CIP/OUQ Accent on Planning 2016 Conference │ The Monthly Plan-It │ National Urban Design Award │
Contribute to Plan Canada │ Job Board Reminder │ Hire an Intern! │ Upcoming Industry Events │
Special CIP Member Meeting to Adopt New Bylaws -May 17
l’INFORMATION en
CIP is pleased to host a Special Town Hall meeting on May 17 to discuss and vote on new Bylaws
to replace the existing Bylaws (dated 1986, consolidated to 2015). The new Bylaws will enable an
enhanced national focus and new structure for the CIP Board of Directors. CIP encourages you to
review the Bylaws in advance of the meeting and forward any questions to communications@cip-
icu.ca. A Notice of Special Meeting with detailed information on the meeting and voting procedures
has been sent by email to each CIP member.
temPs oPPortun
Upcoming: CIP Board of Directors Election
On May 17, the CIP membership will vote on the
proposed CIP Bylaws. If passed, these Bylaws will
result in a new structure for the CIP Board of Directors
that focuses on representing planners from across
Canada. The new Board will be nominated and elected
L
by you, CIP's members. This new Board will be
comprised of individuals tasked with representing the
’Institut canadien des urbanistes s’efforce de vous communiquer de l’information en
best interests of the entire membership from coast to
coast, with an eye to national issues.
temps opportun. vérifiez votre boîte de courriel le deuxième mercredi de chaque
CIP encourages you to consider planners in your
community who you believe would have the capacity
and dedication to lead the new CIP.
mois. vous y trouverez la publication Ce mois-ci en urbanisme de l’ICU.
We want to know where you are reading Plan Nous voulons savoir où vous lisez Plan Canada.
Canada. Share it with us on social media using Dites-le-nous dans les médias sociaux en vous
#PlanCanadaMag. servant du mot-clic #PlanCanadaMag.
Jeffrey Chase shared that he was reading his Jeffrey Chase nous a informés qu’il a lu
Plan Canada on Good friday in Calgary. son exemplaire de Plan Canada le vendredi
saint à Calgary.
WE WANT TO HEAR fROM yOU. CIP_Planning
CIP wants to get social. Be sure to follow
6 us for updates and let us know what
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Accent_ you’ve been working on or reading.
CIP_ICU
NOUS vOULONS RECEvOIR CanadianInstituteofPlanners
DE vOS NOUvELLES.
L’ICU veut être présent dans les médias
sociaux. Suivez-nous pour être au
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courant de l’actualité et nous faire part de
6 vos travaux ou de vos lectures.
Canadian-Institute-of-Planners
stay informed during demeurez au courant
pl an canada | summer · éte 2016
tHe conference durant la conférence!
Stay informed during the CIP/OUQ Demeurez au courant durant la conférence Accent sur
Accent on Planning 2016 Conference in l’urbanisme 2016 organisée par l’ICU et l’OUQ à Québec.
Québec. Use the Conference App Utilisez l’appli de la conférence!
There is nothing to download. Il n’y a rien à télécharger. Rendez-vous tout
Simply navigate to www.eventmobi. simplement à www.eventmobi.com/ACCENTPLANNING
com/ACCENTPLANNING during the pendant la conférence pour y trouver plein de
conference for lots of helpful features like renseignements utiles, comme des précisions sur les
session details, maps, and more. Don’t sessions, des cartes et bien d’autres choses. Ne ratez
miss out: bookmark the event page today rien! Mettez en signet la page de la conférence dans
on your phone. votre téléphone dès aujourd’hui!
NATIONAL URBAN PRIx NATIONAUx
DESIGN AWARDS DE DESIgN URBAIN
U L
rban design and architecture plays an important ’excellence en matière de design urbain et
role in maintaining and enhancing the quality of d’architecture joue un rôle important pour ce qui est
life Canadians in enjoy in cities across the country. de maintenir et d’améliorer la qualité de vie dans les
This year, CIP partnered with the Royal villes canadiennes.
Architectural Institute of Canada and the Canadian Cette année, l’ICU a de concert avec l’Institut royal
Society of Landscape Architects, in cooperation with d’architecture du Canada, l’Institut canadien des urbanistes
Canadian municipalities in order to recognize individuals, et l’Association des architectes paysagistes du Canada,
organizations, firms, and projects that have contributed to et en collaboration avec les villes canadiennes, a tenu à
a higher quality of life and continued sustainability in our reconnaître des particuliers, des organismes, des entreprises
Canadian cities through urban design initiatives. The 2016 et des projets qui ont contribué à améliorer la qualité de vie
National Urban Design Awards winners represent innovation dans nos villes canadiennes et à assurer la durabilité de ces
in nine cities across Canada. dernières grâce à des projets de design urbain. Les lauréats
2016 des Prix nationaux de design urbain témoignent de
l’innovation dans neuf villes du pays.
congratulations to the 2016 national urban design award winners.
félicitations aux lauréats 2016 des Prix nationaux de design urbain.
7
civic design Projects | community initiatives |
Projets d’aménagement municiPaux initiatives communautaires
pl an canada | summer · éte 2016
NATHAN PHIllIPS SQUARE REVITAlIzATION/ THE BENCH/lE PROJET DE BANCS (CAlgARy, AB)
REVITAlISATION DE lA PlACE NATHAN PHIlIPS
(TORONTO, ON) develoPers & designers /
Perkins + Will canada in joint venture / Promoteurs & designers : anonymous | anonymes
en partenariat avec, with Hoerr schaudt landscape “This project offers a new and vibrant interpretation of this
architecture and adrian Blackwell urban Projects | basic piece of public furniture and cuts directly to what com-
Plant architect inc. munity initiated urban design should be.” | « Ce projet offre
“…a successful revitalization of a civic heart that draws people une interprétation nouvelle et dynamique de cet élément de
in with an enduring, timeless, restrained intervention.” | « … il base d’un mobilier public et le réduit selon les attentes de la
s’agit de la revitalisation réussie d’une place municipale de collectivité envers le design urbain. »
premier plan qui attire les gens par une intervention pérenne,
intemporelle et contenue. »
P l A N N E R U P DAT E |
l’ac t ua l i t é d e s u r b a n i s t e s
student Projects | Projets étudiants
IMPOSE (EDMONTON, AB) REGENERATING ROSSDALE (EDMONTON, AB)
Brad comis, sebastian sauve-Hoover, danielle soneff of/ michael zabinski, designer
de threshold art and design working with/en collaboration “…a thought provoking reclamation of an artifact of a
avec jesse sherburne. previously polluting industry. It is a powerful statement of
“...evokes thoughts of human habitat and urban wildlife while urban renewal.” | « une remise en état qui suscite la réflexion
making a connection to the built fabric.” | « … cela évoque des d’un artefact d’une ancienne usine polluante. C’est une
réflexions sur l’habitat humain et la faune et la flore urbaines proclamation puissante du renouvellement urbain. »
tout en créant un lien avec le tissu bâti. »
urBan arcHitecture | arcHitecture urBaine urBan design Plan | Plan de design urBain
8
pl an canada | summer · éte 2016
UNION STREET ECOHERITAgE (VANCOUVER, BC/C-B) TECHNOPÔLE ANGUS - PHASE II (MONTREAL, QC)
sHaPe architecture inc. Provencher_roy
“…achieves an elegant solution that is both simple and “The design creates a public realm with high degree of
profoundly important in creating a precedent for infill pedestrian connectivity and permeability.” | « L’aménagement
densification.” | « une solution élégante à la fois simple crée un environnement public qui se distingue par un degré
et profondément importante en créant un précédent de élevé de connectivité pédestre et de perméabilité. »
densification intercalaire. »
urBan fragments | fragments urBains
ENTRE lES RANgS (MONTRÉAl, QC) IMPUlSE (MONTRÉAl, QC)
Kanva lateral office / cs design
“…inviting, educational and playful.” | « L’effet est invitant, “… innovative and playful and brings people out into the city.”
éducatif et ludique. » | « Innovateur et ludique et il ramène les gens dans la ville. »
THE fOLLOWING ARE RECOGNIzED WITH SPECIAL JURy AWARDS |
LES PROJETS SUIvANTS ONT REçU UN PRIx SPéCIAL DU JURy
small or medium community urBan design
sustainaBle develoPment aWard | aWard | Prix de design urBain dans une
Prix du déveloPPement duraBle Petite ou moyenne communauté
9
pl an canada | summer · éte 2016
ST. PATRICK’S ISlAND PARK/PARC DE l’ÎlE ST. PATRICK KINSMEN PARK/PARC KINSMEN (SASKATOON, SK)
(CAlgARy, AB) space2place design inc.
calgary municipal land corporation “…a fun, exciting and unique design that leads the way
“…a positive example of how design processes can educate in public engagement.” | « Voici un aménagement
community members about sustainability.” | « Cette démarche amusant, attrayant et unique qui montre l’exemple de
illustre bien comment le design peut sensibiliser les membres l’engagement public. »
d’une collectivité à la durabilité. »
P l A N N E R U P DAT E |
l’ac t ua l i t é d e s u r b a n i s t e s
CERTIfICATES Of MERIT ARE AWARDED IN THE fOLLOWING CATEGORIES:
| DES CERTIfICATS DE MéRITE ONT éTé DéCERNéS DANS LES CATéGORIES SUIvANTES :
civic design Projects | urBan design Plans |
Projets d’aménagement municiPaux Plans de design urBain
lANSDOWNE PARK/ PARC lANSDOWNE (OTTAWA, ON)
Pfs studio
“…successfully achieves feelings of leisure, space and
delight.” | « Il suscite une impression de détente, d’espace
et de plaisir. »
urBan arcHitecture |
arcHitecture urBaine
UNIVERSITy OF OTTAWA CAMPUS MASTER PlAN/PlAN
DIRECTEUR DU CAMPUS DE l’UNIVERSITÉ D’OTTAWA
(OTTAWA, ON)
university of ottawa / urban strategies inc.
“The campus master plan uses classic urban infill to create
strong pedestrian connections that repair the campus and
successfully overcome topographical challenges.” | « Le plan
directeur du campus utilise l’insertion urbaine classique pour
créer de solides liens piétonniers qui corrigent le campus et
relèvent avec succès les défis topographiques. »
10
urBan fragments | fragments urBains
QUARTIER DES SPECTAClES (MONTRÉAl, QC)
pl an canada | summer · éte 2016
Partenariat du Quartier des spectacles
“ While this body did not officially enter the urban design
competition, its programming for this annual competition
has been so critical in facilitating the award-winning
designs that they merit acknowledgement as important
QUEEN RICHMOND CENTRE WEST (TORONTO, ON) agents of successful urban design.” | « Cet organisme n’a
sweeny&co architects inc. pas participé officiellement au concours de design urbain,
“The old brick buildings successfully became assets for the mais il a joué un rôle de premier plan dans ce concours
new design rather than barriers to its execution.” | « Les vieux annuel par sa programmation qui a favorisé la réalisation
bâtiments de brique sont devenus des atouts pour le nouvel de projets primés. »
aménagement plutôt que des obstacles à sa réalisation. »urBan fragments | community initiatives |
fragments urBains initiatives communautaires
lIMOIlOU DANS lA RUE (QUÉBEC, QC) gORE PEDESTRIANIzATION INITIATIVE; VETERANS’
groupe a / annexe u PlACE/PlACE DES VÉTÉRANS (HAMIlTON, ON)
“This project takes a number of under-utilized parking spaces the mBtW group
and animates them with a simple and elegant design. The “This previously moribund series of spaces were effectively
materials are modest and the execution is effective.” | « Ce rediscovered and animated with high quality pedestrian
projet porte sur des places de stationnement sous-utilisées spaces.” | « … cet ensemble d’espaces moribonds a
qu’il anime par un design simple et élégant. Les matériaux été redécouvert et animé par des espaces piétonniers
sont modestes et l’exécution est efficace. » de grande qualité. »
NEW MEMBERS | CIP’s President Hazel Christy took part in the
n o u v e au x m e m b r e s formal award ceremony during the RAIC’s festival of
Architecture in Nanaimo, British Columbia on June 10,
2016. More details about the awards can be found online
ciP welcomes the following new full members at https://raic.org/awards/national-urban-design-awards.
to the institute La présidente de l’ICU, Hazel Christy, a pris part à la
l’icu souhaite la bienvenue au sein de l’institut aux cérémonie officielle de remise des prix dans le cadre du
nouveaux membres à part entire suivants : festival de l’architecture organisé par l’IRAC à Nanaimo,
Colombie-Britannique, le 10 juin 2016. Pour de plus
Ann-Marie Cashin MCIP API
amples détails sur ces prix, veuillez consulter la page
Justin forbes MCIP, LPP API
Web suivante : https://raic.org/fr/awards/prix-nationaux-
Mark Hefferton MCIP API
design-urbain-lauréats-de-2016. ■
Dayna facca MCIP, RPP APPI
Michael Klassen RPP, MCIP APPI 11
Kirstin Pacheco RPP, MCIP APPI
Lawrence Bird MCIP MPPI
Steven McMillan MCIP MPPI
Jessica Bester MCIP, RPP OPPI
index of advertisers
pl an canada | summer · éte 2016
Rukshan de Silva MCIP, RPP OPPI
Jana Kelemen MCIP, RPP OPPI Page No.
John vos MCIP, RPP OPPI Bunt & Associates Engineering Ltd. .............................................................31
MacNaughton Hermsen Britten TO ............................................................31
Ashley Beaton RPP, MCIP SPPI
Malone Given Parsons Ltd. ............................................................................... 30
Kenny Gobeil MCIP, RPP SPPI
O2 Planning + Design Inc. ..................................................................................21
Wes Holowachuck MCIP, RPP SPPI Urban Strategies Inc. .............................................................................................14
Alan Lindsay MCIP, RPP SPPI Watson & Associates Economists Ltd. ...................................................... 30
S. yvonne Prusak MCIP, RPP SPPI Weston Consulting Group Inc. ........................................................................14
Danny Roy MCIP, RPP SPPI WSP Canada Inc. ........................................................................................................14
Lee Smith MCIP, RPP SPPI
Ian Williamson MCIP, RPP SPPI for information on advertising Please contact
Kim davies at naylor association solutions
at (800) 665-2456, x 4423 or Kdavies@naylor.comC I P S P E C I A l F E AT U R E |
icu article du Fond
hier à aujourd’hui |
from yesterday to Today
C ette année, la conférence nationale
sur l’urbanisme a lieu à Québec du
5 au 8 juillet. Afin de vous donner
un avant-goût du Congrès Accent 2016, le
journal Le Soleil, de Québec vous offre un
T his year’s national planning conference is
taking place in Québec from July 5-8. To
give you a glimpse of what is awaiting you
at Accent on Planning 2016 conference in Québec
City. Le Soleil, Quebec City’s local newspaper offers
aperçu du développement urbain survenu you a taste of the urban development that occurred
dans les dernières décennies. in the last decades.
Au fil du temps, Québec a changé. Preuves, ces Over time, Québec has changed a great deal. The Québec of
photos d’hier reprises aujourd’hui, pour comparer! Un the past is immortalized in these pictures, and contrasted with
projet photographique de Patrice Laroche, photographe the present-day cityscapes to show the urban development of
au journal Le Soleil de Québec. ■ the city. This project is an initiative of Le Soleil’s photographer,
Patrice Laroche. ■
today
la rue sainte-anne / sainte-anne street
12
pl an canada | summer · éte 2016
1949
PHOTO REPRODUITE AVEC l’AIMABlE AUTORISATION DE / PHOTO COURTESy OF: BANQ, E6, S7, SS1, P68686 OMER BEAUDOIN
PHOTO REPRODUITE AVEC l’AIMABlE AUTORISATION DE / PHOTO COURTESy OF: PATRICE lAROCHE, lE SOlEIltoday
Parliament Hill / la colline Parlementaire
1907
PHOTO REPRODUITE AVEC l’AIMABlE AUTORISATION DE / PHOTO COURTESy OF: lA COllINE PARlEMENTAIRE EN 1907, BURKEWOOD WElBOURN ©MUSÉE MCCORD
PHOTO REPRODUITE AVEC l’AIMABlE AUTORISATION DE / PHOTO COURTESy OF: PATRICE lAROCHE, lE SOlEIl
today
la Porte Prescott / la Porte Prescott
1870
PHOTO REPRODUITE AVEC l’AIMABlE AUTORISATION DE / PHOTO COURTESy OF:
PORTE PRESCOTT VUE DE l’ExTÉRIEUR, QUÉBEC, QC. DON DE MR. DAVID ROSS MCCORD ©MUSÉE MCCORD
PHOTO REPRODUITE AVEC l’AIMABlE AUTORISATION DE / PHOTO COURTESy OF: PATRICE lAROCHE, lE SOlEIl
today
la rue du Petit-champlain / Petit-champlain street
1890
13
pl an canada | summer · éte 2016
PHOTO REPRODUITE AVEC l’AIMABlE AUTORISATION DE / PHOTO COURTESy OF:
WM.NOTMAN AND SON RUE DU PETIT CHAMPlAIN, QUÉBEC, VIEW-2535.0 ©MUSÉE MCCORD
PHOTO REPRODUITE AVEC l’AIMABlE AUTORISATION DE / PHOTO COURTESy OF: PATRICE lAROCHE, lE SOlEIlCommunity Planning
WE SEE
THRIVING
Land Development
Urban Design
COMMUNITIES Community Engagement
Geospatial Analysis & Web Design
798253_WSP.indd 1 05/04/16 3:45 am
14
pl an canada | summer · éte 2016
799186_Urban.indd 1 800585_Weston.indd
4/18/16 4:33 PM 1 3/10/16 3:58 PMF R O M T H E E D I TO R I A l B OA R D
m e s s ag e d u c o m i t é d e r é dac t i o n
s a n d e e P ag r aWa l P h d , A I C P, R P P, M C I P
P l A n C A n A dA e d I t I o R I A l B oA R d /
C o M I t é d e R é dAC t I o n d u P l A n C A n A dA
Financing cities |
fINANCER LES vILLES
I C
t is a pleasure to be introducing this special issue on ’est un plaisir pour moi que de vous présenter ce
behalf of the Plan Canada Editorial Board. for this numéro spécial au nom du comité de rédaction
special issue, financing Cities, we were able to bring de Plan Canada. Ce numéro spécial sur le
together some of the leading economists and planners, financement des villes réunit quelques-uns des
both scholars and practitioners, from across the country principaux économistes et urbanistes, tant chercheurs que
to contribute. praticiens, de tout le pays.
Current municipal fiscal crisis is the single biggest La crise fiscale est le plus grand défi auquel font face
challenge that Canadian cities face. Cities are severely les villes canadiennes. Ces dernières sont sévèrement
limited by few financing options and revenues available to limitées par le peu d’options de financement disponibles
provide adequate services and finance capital projects and pour fournir des services adéquats et financer des projets
infrastructure. This issue of Plan Canada focuses on this d’infrastructure. Ce numéro de Plan Canada met l’accent sur
important challenge by examining how reliable currently cet important défi en examinant la fiabilité des mécanismes
available financing mechanisms and revenue options are and de financement et en explorant les solutions de rechange.
exploring what other alternative options are available. Ce numéro est agencé de telle sorte que les premiers
The issue is arranged in such a way that the first few essais (Slack, McMillan et Tassonyi et Conger) ouvrent la
essays (Slack, McMillan, and Tassonyi and Conger) set the voie en dressant l’inventaire des outils de financement dont
stage by clarifying some of the basics of financing tools disposent les villes canadiennes. L’essai de Slack cherche
available to Canadian cities. Slack’s essay also looks in to aussi à anticiper ce que réservent les prochaines décennies.
the future as to what next few decades may hold for the La série d’articles suivante (Amborski, Singh, Siemiatycki
Canadian cities. The next set of articles (Amborski, Singh, et Binning) entre dans les détails de chaque mécanisme
Siemiatycki, and Binning) go into the details of each financial de financement comme la capture de la valeur foncière,
mechanism like land value capture, carbon tax, Public Private la taxe sur le carbone, le partenariat public-privé et les
Partnerships and transit funding sources. The last three sources de financement du transport en commun. Les trois 15
essays by practitioners (Chisholm and Beck, fowler, and derniers essais signés par des praticiens (Chisholm et Beck,
Wollenberg) include the application and effect of a financial fowler et Wollenberg) comprennent l’application et l’effet
tool in a real setting, the cost of sprawl subsidies and a d’un outil financier dans un contexte réel et une discussion
discussion with a private sector land development analyst on avec analyste du secteur privé sur certaines questions
pl an canada | summer · éte 2016
some important questions pertaining to financing. importantes liées au financement.
The Editorial Board had hoped that this issue would Le Comité de rédaction avait espéré que ce numéro
enlighten our readers about this timely and topical subject éclairerait les lecteurs sur ce thème d’actualité, le rendrait
matter, make it more accessible to those who are not fully plus accessible à ceux qui ne sont pas entièrement
versed with urban economics and other more specialized familiarisés avec l’économie urbaine et d’autres aspects
aspects of planning and bring the municipal fiscal plus spécialisés de l’urbanisme et mettrait à l’avant-plan
issue to the forefront. I hope that we were successful in la question de la fiscalité municipale. J’espère que nous y
realizing our goal. ■ sommes parvenus. ■financing
canadian
cities
in the
21st century
By e n i d s l ac K P h d
i
t has become commonplace to say
that Canadian cities are the engines
of the national economy. Cities face
16
many challenges, however, ranging from
changing demographics, increased income inequality,
increasingly complex expenditure demands, downloading
pl an canada | summer · éte 2016
of expenditures from federal and provincial governments,
mounting infrastructure deficits, and more. These challenges have
increased over the last few decades, while revenues available to cities to
address them have remained largely the same: property taxes, user fees, and
transfers from federal and provincial governments. Canadian cities have been
pressing for access to more revenue sources, comparable to large U.S. and
European cities. Can cities raise more revenues from existing sources? Should
cities be given access to more sources of revenue?for governments to operate efficiently, revenues must be clearly linked to expenditures. A direct
linkage between expenditures and revenues results in more accountable government, with taxpayers
being less averse to paying taxes when they know where their tax dollars are being spent.
One way to provide that direct link is by levying user fees, which not only bring in needed
revenues but also play an important role in altering economic decisions. User fees
need to be properly designed to enable citizens to make efficient decisions
about how much of a service to consume and governments to make efficient
decisions about how much of the service to provide. Under-pricing (or not
charging at all) leads to over-consumption and demands to build more
under-priced infrastructure.
The property tax is a good tax for local governments: property
can’t move so it cannot escape the tax, it is fair based on the
benefits received from local government services, and
revenues are relatively stable and predictable. for many
cities, the evidence suggests that there is room to increase
at least the residential property tax without a major impact
on the local economy. Even if property taxes were increased,
however, revenues may still not be sufficient to meet
the growing needs of large cities. A mix of taxes would
give cities flexibility to respond to local conditions such
as changes in the economy, evolving demographics and
expenditure needs, changes in the political climate, and
other factors. A broader mix of taxes would also allow
cities to achieve revenue growth, revenue stability, and
fairness in impact on taxpayers.
Many cities around the world have access to taxes such
as income, sales, hotel, fuel and motor vehicle taxes. for
Canadian cities, personal income taxes have the potential to
bring in the most significant amount of revenue. Although
it would be administratively efficient for cities to piggyback
onto the provincial tax (on income, fuel, et cetera) with the
province collecting the revenue and remitting it to cities, it
is critical that local governments set their own tax rate. In
this way, they would be accountable to taxpayers through the
linking of taxes to the services consumed.
The federal and provincial governments have a role to
play. Where local services spill over municipal (or provincial)
boundaries, there is a role for these governments to provide
conditional transfers that reflect the amount of the spillover.
Although transfers are appropriate under these circumstances, for
the bulk of their revenues, cities need to be empowered to meet their
expenditure responsibilities with adequate and appropriate own-source 17
revenues. When the level of government making the spending decisions
(municipalities) is not the same as that raising the money (provincial or
federal governments), accountability is blurred. Local governments should be
given the chance and challenge to raise more money on their own and they should
pl an canada | summer · éte 2016
be accountable to their citizens for financing the services they provide. It’s always more
pleasant for cities (and their politicians) to receive money from other governments, but such
largesse is seldom reliable or free, as grants tend to reflect the priorities of the donor government.
finally, regional structures are needed to address region-wide problems. Many issues faced by
big cities – economic competitiveness, transportation gridlock, urban sprawl, air and water pollution,
and social polarization – can only be solved at a regional level. The boundaries of formal government
structures seldom correspond to the scale of city-regions. This problem can be solved by creating
effective governance structures for their metropolitan regions. ■
enid slacK PhD, is the Director of the Institute on Municipal Finance and governance at the Munk School of global
Affairs at the University of Toronto.Financing
municipal
infrastructure:
The Basics
By B r i a n c o n g e r m P P, r P P, m c i P
a n d a l m o s ta s s o n y i P h d
18
pl an canada | summer · éte 2016
“tHe federal government Has tHe money,
tHe Provincial governments Have tHe
constitutional autHority, and local
governments Have tHe resPonsiBility
for maKing tHe actual investments.”
— HugH McKenziesummary Municipalities own and maintain two-thirds of résumé Les municipalités possèdent et maintiennent les
Canada’s stock of public infrastructure. How this deux tiers des stocks d’infrastructures publiques du Canada.
infrastructure is financed forms a critical link between the Le mode de financement de ces infrastructures forme un
needs of residents and the priorities of local government, lien essentiel entre les besoins des résidents et les priorités
with civic elections dominated by what gets built and du gouvernement local. Les élections municipales sont alors
who pays for it. Local infrastructure needs reverberate dominées par ce qui sera construit et qui paiera pour le
across all levels of government as increasingly complex faire. Les besoins en infrastructures locales se répercutent à
and costly municipal infrastructure projects have led tous les niveaux de gouvernement alors que les projets
many municipalities to rely on their provinces and Ottawa d’infrastructure municipaux de plus en plus complexes et
to contribute significant funds. This article looks beyond coûteux ont conduit de nombreuses municipalités à compter
the conditional grants that have become the lifeblood of sur leurs provinces et sur Ottawa pour verser des fonds
municipalities across the country and reviews various importants. Cet article regarde au-delà des subventions
methods and tools that local governments use to finance conditionnelles qui sont devenues la pierre angulaire de
local infrastructure. municipalités à travers le pays et examine diverses
méthodes que les gouvernements locaux utilisent pour
financer l’infrastructure locale.
M
unicipal infrastructure is everywhere, from local streets and county roads,
to bridges, sidewalks and landfills, and the potable water lines, sewer
and storm systems tucked largely out of site. As we turn on the shower,
flush the toilet and walk/drive/ride to work, we often take this infrastructure
for granted, yet how local government finances the provision of municipal
infrastructure directly impacts not only our wallets but our overall quality of life.
has noted, “the federal government has the money, the
municiPal resPonsiBilities
provincial governments have the constitutional authority,
financing the building and maintenance of municipal and local governments have the responsibility for making
infrastructure occurs within the parameters afforded to the actual investments.”1
local governments by their respective provinces. In Canada,
as in other federal systems, constitutional bargaining
municiPal revenue generation
has resulted in the assignment of certain expenditure
responsibilities and revenue sources to local government. The connection between local expenditures, local
This is in line with the Subsidiarity Principle that states that revenues and the efficient provision of public services –
government services should be provided by the lowest known as the “Wicksellian connection” – has long been
level of government that can do so efficiently. Importantly understood,2 meaning that there is widespread agreement
local governments are in the best position to understand, on general principles that should be followed in making
or at the very least be aware of, local preference and choices concerning the appropriate sources of local 19
limitations on fiscal capacity. However, vertical fiscal revenues. Generally speaking, the best municipal taxes are
imbalances among the various orders of government have those that:
developed that may require intergovernmental transfers to • Are based on an immobile tax base and therefore,
resolve differences in revenue capacity. As one observer borne primarily by local residents (not exported)
pl an canada | summer · éte 2016• Do not create problems with harmonization or harmful as resident preference and political willingness) influencing
competition between local governments or local the pricing of user fees. Ultimately, the objective in setting
governments and more senior levels of government fees should be to establish a clear link between services
• Generate sufficient, stable and predictable revenues received and the charges for them to avoid overinvestment
• Are visible to ensure accountability and transparency and temper inefficient demand.
• Are perceived to be fair, and
• Are easy to administer locally. 3
cHarges sPecific to Beneficiaries
What follows is a high-level exploration into the various
methods and tools that local governments use to finance Beneficiary specific charges are self-explanatory,
municipal infrastructure. however, it is important to note that often the target of a
specific charge will shift the burden to groups not intended
by a municipality. Three beneficiary specific charges are
oWn-source revenues
covered herein.
Own-Source Revenue (OSR) is the revenue that a development charges: Development charges (sometimes
municipality raises by levying taxes or by generating internal referred to as off-site levies), where a specific dollar value
revenue through fees. Three forms of OSR are of particular per lot is imposed on developers, are used to finance the
importance to local government. off-site capital costs of new development. Historically,
general operating revenues and reserves: from the development charges have been largely used to finance
perspective of capital financing, the use of general funds is hard services, such as water supply, sewage treatment, trunk
most appropriate for the acquisition of assets with a short mains and roads. A development charge corresponds best to
life expectancy (police cars and fire engines) or recurrent the benefits-received principle when the costs and benefits
expenditures usually tied to maintenance and repairs of the infrastructure for each property can be determined.
(roads, sidewalks, street lighting and parks). The use of An efficient development charge must cover the full cost of
current revenues may be desirable when the benefits of delivering the service, a capacity component which covers
capital projects accrue to current users. General operating the capital cost of constructing the facility, plus a location
revenue funds are not desirable for one-off expenditures or or distance/density charge that reflects the capital cost of
large fixed assets such as libraries or other civic buildings extending the service to properties or neighbourhoods. The
or assets with a long life expectancy such as water and use of development charges is highly regulated in terms
sewer systems. of the services that may be financed and the attribution of
Property taxes: The real property tax (real property costs to new development.
being immovable property, or land and anything attached to value capture levies: value capture levies are designed
the land, as opposed to personal property that is movable) to recover the increase in land value arising from a public
is the only tax of any direct importance for municipalities investment. The levy permits the municipality to capture
in Canada. Provincial governments in most provinces and (some of) the economic rents accruing to the private sector
territories and school boards throughout the Prairies also that have been created by local infrastructure spending.
use it. Property-related taxes include revenue from the value may be captured in a variety of ways, including a
general property tax on real property, special assessments requirement that the developer provide various facilities
(benefiting area taxes), payments in lieu of taxes and land and infrastructure or cash, in return for being permitted
transfer taxes. As the property tax is related to the collective to undertake the development that the new municipal
benefits rather than the specific benefits of municipal infrastructure facilitates and makes profitable. value may
services and is not established as a price for consuming also be captured through a tax on commercial revenues
20 them, such services are often over-consumed and over- generated by property benefited by the infrastructure.
provided. furthermore, given the relatively higher effective Alternatively, and more likely, a special annual tax on
burdens faced by non-residential taxpayers, the probability property could be levied on value added. value capture
of over-provision is enhanced, as is the probability levies are most suitable for mega-projects such as rapid
of tax exporting. transit expansion.
pl an canada | summer · éte 2016
user fees: The first rule of sensible local finance, shared tax field earmarking: Earmarking from a shared
“wherever possible, charge,” when followed can enhance tax field is typically administered through reserve funds.
economic efficiency by tying benefits to users. Canadian The advantage of earmarking is that it provides a close link
municipalities are allowed to charge user fees and the courts between services provided by a capital asset and taxes to
have upheld the right to charge regulatory fees as well. User finance the asset — potentially providing a boost in public
fees fund some or all of the costs of a range of municipal support. However, there are some issues in situations where
services in Canada. The fees range from fixed charges that funds are channeled into activities that do not have high
are unrelated to consumption to charges that vary directly public priorities, and earmarking may connect expenditures
with the quantity consumed, or a mix of the two. The pricing with revenue sources in totally illogical ways. This approach
structure of user fees may cover all or only a portion of real presents similar shortcomings to conditional grants in
production and delivery costs, with numerous inputs (such that it may distort local preferences and provide wrongincentives for efficient behaviour. The principal advantage the importance of meeting debt-service obligations within
of earmarking revenues from a shared tax field is likely to be local government.
political acceptability; however, there is little consensus that
sharing a piggybacked tax is an appropriate local tax.
conclusion
The effective financing of municipal infrastructure
otHer metHods
is important to the well-being of all Canadians. How
There are several other mechanisms that local municipalities pay for local infrastructure impacts the choices
governments can employ to finance municipal infrastructure, residents and businesses make, which in turn provides local
or receive infrastructure development in-kind. governments with the direction they need to build effective
tax increment financing: In some provinces, variations and equitable communities. ■
on the U.S. experience with tax increment financing (TIf)
are permitted. In general, TIfs involve defining an area, RefeRences
usually in need of brownfield remediation or revitalization 1. Mackenzie, Hugh. Canada’s Infrastructure Gap: where it Came From and
wherein local tax revenue is divided into two categories: Why it Will Cost So Much to Close. Canadian Centre for Policy
Alternatives. 2013; 13
pre-assessed development and the increased assessed 2. Bird, Richard M. and Enid Slack. “Local Taxes and Local Expenditures in
value. Revenues from the increased assessed value are then Developing Countries: Strengthening the Wicksellian Connection,”
typically dedicated to the servicing of debt incurred to Public Administration and Development 2014;34(5),1
3. Kitchen, Harry M., & Almos T. Tassonyi. “Municipal Taxes and User fees.”
upgrade infrastructure. Criticisms of tax increment financing In H. Kerr, K. McKenzie, & J. Mintz, Tax Policy in Canada. Toronto:
include the fact that targeting funds for a TIf development Canadian Tax foundation. 2012, 3
may be at the expense of overall development in a given
Brian W. conger MPP, RPP, MCIP, is the Research lead with the Urban
municipality and that the revenues can impair the finances
Policy Program at the University of Calgary’s School of Public Policy.
of other taxing bodies that share in the targeted areas’ tax
base, depending on whether the grantor has an exclusive almos t. tassonyi PhD, is the Director of the Urban Policy Program and
right to the incremental revenue. an Executive Fellow at the University of Calgary’s School of Public Policy.
density-for-Benefit mechanisms: Density-for-benefit
More information on financing municipal infrastructure can be found in
mechanisms used in several provinces are a well-known
their joint paper “An Exploration into the Municipal Capacity to Finance
form of securing services and infrastructure in place
Capital Infrastructure” available at http://policyschool.ucalgary.ca/
of revenue. The principal rationales for this mechanism
are to trade infrastructure for increased density, to take
a share of the value created for the community and to Halifax
Regional
compensate for negative externalities such as increased Municipality
Centre
traffic or blocking views and light. The framework created Plan
by different municipalities can be scaled from individual
buildings or developments to ward-level amenities, or a
city-wide application.
Borrowing: Municipalities can choose to finance capital
through long-term borrowing, matching the life of an
asset more closely to the costs of acquisition. Except
for the City of Toronto, municipalities are limited by
provincial statute to borrowing related to financing the
costs of capital projects. However, these bonds, while 21
project-related, take the form of general obligation bonds
with joint and several liability provisions, secured by the
whole of the revenue base of the issuing jurisdiction.
furthermore, each province also has rules governing the
pl an canada | summer · éte 2016
instruments that may be issued, as well as currencies and
hedging if the debentures are issued in a foreign currency.
Given the lumpiness of capital investments, the annual
preparation of operating budgets and the intolerance
for revenue increases, borrowing at the municipal level
can act as a smoothing device for the funding process. emphasizes an integrated approach
Borrowing rules have provided a hard budget constraint to urban design and planning, one in which
for municipalities, creating an incentive for conservative infrastructure, landscape, economy, and culture
financial management and have likely enhanced their inform each other and enrich the city.
ability to borrow. This has led to pay-as you-go policies o2design.com
with respect to capital financing and a strong awareness of
807361_Planning.indd 1 5/2/16 7:47 PMcanadian cities:
Present Structure
and Possible Alternatives
By m e lv i l l e m c m i l l a n P h d
summary Canada’s cities have been very successful résumé Les villes du Canada ont très bien réussi à
at providing local public services. The continuous fournir des services publics locaux. Le défi continu de
challenge of balancing demands and resources has l’équilibre entre les demandes et les ressources a souvent
often led to calls for additional sources of funding. The conduit à des appels à d’autres sources de financement.
objective of this paper is to help understand better the L’objectif de cet article est d’aider à mieux comprendre
situation and options. It reviews the existing sources la situation et les options. Il examine les sources de
of funding, offers assessments, and explores some financement existantes, offre des évaluations et explore
options. Alternatives have a range of pros and cons. certaines options. Les alternatives ont une gamme
d’avantages et d’inconvénients.
hen thinking of financing cities, Canadians typically think of
property taxes. City financing, however, is considerably more complicated
and funding sources more diverse. In addition, the reliance on specific
sources often varies considerably among cities.
Demonstrating these characteristics accurately is not municipal government sources in 2011: selected municipalities
simple. Canada has no city finance database and provincial City of Edmonton Alberta Municipalities Ontario Municipalities
data are not necessarily consistent. As a compromise within Taxes on Property 34.5 40.9 45.2
the available space, I illustrate with data from one city, Sales of Goods & Services 19.5 20.5 21.4
Edmonton, and for municipalities in two provinces, Alberta Transfers 21.5 21.7 22.5
and Ontario but, in the discussion, I will point to some of the Property/investment income 10.8 3.2 2.1
major variations.1 Fines & Penalties 1.7 1.3 1.1
The accompanying table indicates the diversity of Licences, Permits, Fees 1.8
12.3 7.5
22 revenue sources and suggests considerable similarity among
Franchise Fees 4.1
Developer Contributions 6.0
the three observations. Property taxes are the single major
Sources: City of Edmonton Annual Report; provincial and municipal
source of revenue for municipal governments. However,
data calculated from CANSIM Table 3850037.
sales of goods and services and transfers from other levels
of government (primarily provincial) are also important property/investment income is comparatively large at about
pl an canada | summer · éte 2016
with each representing about one-fifth of total revenues. one-tenth of total revenue. This feature is the consequence,
Together property taxes, sales and transfers account for 75 particularly, of the City owning a telephone company and
to 90 per cent of revenues. The major difference appearing an electric power company. Those interests were either sold
between Alberta and Ontario municipalities is that Alberta (telephones and power generation) and the funds invested
municipalities utilize more heavily various fees and charges or (electricity distribution) established as a City-owned and
(licences, permits, fees; franchise fees, and developer dividend-paying business entity. The resulting returns reduce
contributions) than is the case in Ontario – 12.3 per cent of the demands on property taxes.
revenue versus 7.5 per cent – and rely somewhat less on The history of utility ownership affords other insights.
property taxes. Sales of goods and services primarily represent user charges
The finances of the City of Edmonton provide an for city services. Typical of those are charges for water,
interesting example. The most striking feature is that sewerage and solid waste services, use of recreationalVous pouvez aussi lire
