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8. Implications for Others
This paper is limited to examining three non-traditional Canadian cases. In order to facilitate further dialogue on their applicability elsewhere, we will attempt to identify their potential implications.
What are important considerations for other cities that might wish to adapt these models to their own situations?
Time Frame
All three models matured over a significant period of time. It is suggested that capacity building for these kinds of governance models requires time. This is in large part due to their emphasis on consensus and voluntary agreements that are based on trust. Trust is built up over a period of time through working together to solve problems. Municipalities considering applying these models (and donors who might help fund capacity building) should be aware that they will likely take longer than the term of office of the current politicians. In the experience of the International Centre for Sustainable Cities, results begin to show in the third and fourth year and by the fifth year further adaptation of the models and their legal status will likely need to be addressed.
Resources
All three models involved significant investment of resources. The GVRD's investment in regional planning, particularly the time devoted to integrating land use and transportation plans has involved a highly professional team of planners, as well as some outside consultants. The Fraser Basin Council drew upon a vast wealth of expertise that was accumulating in Environment Canada and elsewhere about multi-stakeholder processes. Its first years were spent in building its structure, relationships and staff resources to play a facilitative role in the watershed. The NRTEE had stable funding and was able to devote considerable time to consider its own structure and membership.
One of the advantages of the GVRD model is the efficiency that flows from not having to duplicate staff and services from one municipality to the next. Part of this, of course, is offset by the need to have regional staff. Many small municipalities and those in developing country cities do not have planning staff at all, or those that do serve many other functions, as well. Thus, cities or regions considering these models may wish to begin with a feasibility study to identify resource needs. The bottom line is that capacity cannot be improved without investment.
Engagement Process
The essence of governance versus government is the engagement of non-government actors in the process. The three models describe different approaches to engagement of a wide variety of actors in the process of governance. The GVRD involves 21 different local authorities and engages other stakeholders through various advisory boards, committees, programs and initiatives such as the partners group for the Sustainable Region Initiative. The Fraser Basin Council brings a wide range of stakeholders to the same table and facilitates dialogue among many others in the watershed. The National Round Table combines research and engagement with a broad group through consultations and reports. The lessons from all three have relevance for other cities wishing to enlarge the involvement of other sectors in their governance.
Guiding Ideas
One of the reasons these three models have contributed so much to urban sustainable development is that each has incorporated a significant and well-articulated vision of sustainability. The GVRD has moved far beyond a functional association of neighboring towns and cities sharing physical infrastructure and utilities. Its Livable Region Strategic Plan voices a compelling vision for the region:
"Greater Vancouver can become the first urban region in the world to combine in one place the things to which humanity aspires on a global basis: a place where human activities enhance rather than degrade the natural environment, where the quality of the built environment approaches that of the natural setting, where the diversity of origins and religions is a source of social strength rather than strife, where people control the destiny of their community; and where the basics of food, clothing, shelter, security, and useful activity are accessible to all." 90
All three models focus on the integration of social, economic and environmental well being. The importance of seeing the city region or watershed as one system is essential to understanding and dealing with the complex interactions of decisions on the various parts of the system. The themes of livability, sustainability and resilience have emerged in the GVRD as it has moved to undertake a 100-year strategy for the region. xiii This much longer time perspective has also pointed out the need for adaptive management. Thus it is suggested that others who might wish to apply these models spend considerable time in articulating their guiding ideas and the principles they value. xiv
Methodology
Many believe that development activities, whether in Canada or in developing country cities, are most successful when they respond to a practical local or regional problem, such as solid waste or transportation and land use. xv The GVRD started with water and wastewater; the FBC with environmental pollution. In the context of enabling the formation of cooperative relationships within a region or watershed, such a focus gives purpose to the effort. People do not come together just to be together, they come together to do something that they cannot accomplish alone. Often the identification of one demonstration project, if conceived of as a learning activity, allows the partners in the agglomeration to build trust and to see the value of cooperation. It then leads to other shared activities. The demonstration project, however, must be designed to integrate all three aspects of sustainability and the ultimate overarching vision for the region needs to be articulated so that the activity is not just a 'one off project'. Provision must also be made at the beginning to identify how the demonstration will be scaled up if it is successful.
An exception to this problem-focused approach has emerged over the past two years. The GVRD participated in (and won) an international competition for a 100 year plan for a sustainable urban system design. Known as citiesPLUS, an acronym for Cities Planning for Long-term Urban Sustainability, the experience brought together over 500 people in charting the path for the region. xvi While it was developed with the GVRD it was not developed by the GVRD. A consortium of four partners was involved, led by the Sheltair Group (a private sector consulting firm), the Liu Institute for Global Issues (an academic think tank), the International Centre for Sustainable Cities and the GVRD. The outcome was much more than an academic plan. The long-term focus allowed participants to think beyond the usual boundaries of departments, disciplines, territories and terms of office. It provided a neutral entry point to consider long-term trends and impacts that are usually not considered within the normal planning period. The ideas generated are having influence on the day to day decisions within the region. When one considers that we live with the results of decisions made 50 to 100 years ago regarding the layout and infrastructure of our cities and regions, it makes sense to use a very long-term lens when making similar decisions today. The GVRD, the Liu Institute and the International Centre for Sustainable Cities were sufficiently seized by the experience that they have joined with ICLEI - Local Governments for Sustainability - to establish a network of cities interested in sharing learning, expertise and tools of such long-term planning. xvii This learning network is potentially a strong capacity building tool for cities wishing to use long-term planning as a neutral entry point for developing a cooperative regional structure.
Given a desire to build a cooperative structure such as the GVRD or FBC what key elements must be included from the perspective of capacity building?
xiii. See The Livable City and citiesPLUS
xiv. Seymoar, Why SD has failed to live up to its promise.
xv. See www.icsc.ca for a description of the way the Centre approaches development.
xvi. See citiesPLUS
xvii. For further information see www. icsc. PLUS 30 Network