From Planning to Collabora(c)tion: Making Brandon’s HUB Move-in Ready Abstract

From Planning to
Collabora(c)tion:
Making Brandon’s HUB Move-in Ready
Abstract
Caitlin Kotak
in collaboration
with Braden
Pilling,
Nadalene
KhanDowntown
Development
Cooper, Manitoba
Local
Specialist
of Renaissance
Government,
and Ryan
Brandon,
and
City of
Nickel, City
ofthe
Brandon
Brandon
DePlanning Planning
Department
partment
‘The Downtown HUB:
HUB: The
ThePlace
Placefor
forPeople,’
People,’Renaissance
RenaissanceBrandon’s
Brandon’s
ambitious secondary plan
plan for
for the
the City
City of
of Brandon,
Brandon,was
wascreated
createdtoto
breathe fresh
fresh life
lifeinto
intoliving,
livingworking,
in the very
heart
of
Brandon’s
and playing in the very downheart of
town core. downtown
This Case-in-Point
on how focuses
the pillar
of
Brandon’s
core. Thisfocuses
Case-in-Point
onstructure
how the pilboth
the Brandon
PlanningArea
District’s
development
plan, and
lar
structure
of bothArea
the Brandon
Planning
District’s development
Renaissance
secondarysecondary
plan have plan
combined
with strategic
plan,
and theBrandon’s
City of Brandon’s
have combined
with
planning
policies
and
finance
mechanisms
to
push
planning
forward
strategic planning policies and finance mechanisms to push planning
into action,
in the incredible
ongoingongoing
transformation
of the
forward
intoresulting
action, resulting
in the incredible
transformation
downtown.
MakingMaking
Brandon’s
HUB aHUB
reality
would would
not have
of
the downtown.
Brandon’s
a reality
notbeen
have
possible
without
manymany
members
of public,
private,
andand
third-sector
been
possible
without
members
of public,
private,
third-secorganizations
going
beyond
the
expected
to
transform
this
series
tor organizations going beyond the expected to transform this seriesofof
projects from planning to collabora(c)tion.
1
Background
& Context
The city of Brandon is Manitoba’s second largest settlement by
population and is located approximately 200 kilometres due west
of Winnipeg. Today Brandon is
home to over 46,000 and continues a strong trend of growth: in
the past five years, Brandon has
sustained an astonishing 11%
growth rate, over double the provincial average of 5.2% (Statistics Canada, 2012). Related to
this high growth rate, construction
of new housing
lagging
The recognized
regionalisplanning
in
the urban
areas,
and a high
authority
enables
integrated
and
level
of demand
exists
for affordregional
long term
planning.
The
able
housing
units inPlan
particular.
RPGA
Development
is the
Contrary
to
expectation
with
this
first planning document prepared
high
of growth,
apby thislevel
Planning
District.only
Having
proximately
800 for
people
live in
created a vision
the region,
the
underdeveloped
downtown
the RPGA District described
area
by theinred
circle
in
threeindicated
distinct ways
which
they
the
image
below.
livesatellite
in their
communities
and
how they plan to shape future
development: Country Living,
Village Living, and Town Living. The language used is meaningful to local decision-makers
who use the Plan. It avoids the
‘bureaucratease’ of planners and
senior levels of government. As
there are different ways in which
RPGA residents live and want
to use the land (country, village,
town) there are different policies
applicable to each of these identified areas within the region. The
RPGA Development Plan speaks
not only to past histories, but also
to current realities and future
possibilities for this diverse and
complex region.
Background
Specifics
Brandon
is part of
Brandon
Prior to January
1, the
2010
the RMand ample private green space with
Area
PlanningandDistrict
(BAPD),
of Rhineland
the Towns
of the majority of homes having exwhich
also
includes
the
municipaliPlum Coulee, Gretna, and Al- pansive working yardsites.
ties
Elton, well
to Bran-don’s
tona,ofthough
connected north,
as
and
Cornwallis,
to
the
south.
a community, worked separatelyThe Overtime, as families grew,
2006
Development
Plan many of the larger lots have been
on theirBAPD
own individual
developcontains
a number
growth
man- repeatedly subdivided to provide
ment plans.
Uponofthe
formalagement
and programming
ization ofpolicies
the RPGA
Planning a space and place for next gengeared
towards:
District, these four separate mu- erations to live. Local property
nicipalities
“to capital• focusing began
development
towards owners have also used subdiize existing
on the urban
strength
of working vision as mechanism to divide
centres,
together
and
across
• encouraging infillboundaries
development and manage family inheritances
to and
solve
complex
challenges” through land. Thus there are
urban
densification,
(RPGA Plan, p.1, 2012). In No- many long-time local residents
• conserving
resources,
vember
2011 the
RPGA Planning and strong family histories in the
• revitalizing
the downtown,
District
Development
Plan was area.
completed
and now
sits with
the
• protecting
heritage
buildings
Province
of Manitoba for consid- Strong eastern European roots atand districts,
eration
of ministerial
approval.
• providing
affordable
housing, tract a rapidly growing newcomer population. The region has
and;
Rhineland,
Plumopportunities
Coulee, Gretnafor become a popular destination to
• increasing
andlocal
Altona
have strong
agricul- Canada for countries around the
economic
development.
tural backgrounds and histories world. A community gathering
linked to Mennonite settlers. Lo- in Altona can have 38 countries
cated in productive farm land, represented! The physical form
“agriculture underpins the eco- of housing and business keep a
nomic strength in this growing rural small town scale. They ‘fit’
region” (RPGA Plan, p.1, 2012). with each other as they reflect a
The population will continue to local composition, weaving togrow in the RPGA District. They gether the local urban and rural
need to accommodate history, fabrics. As the region continues
local economies, and also offer to evolve and grow, it is impora place that welcomes new resi- tant to the community to respect
dents.
past histories and manage possible futures for a diversifying
Historical development patterns region. The RPGA Development
created a land use fabric that in- Plan incorporates historical influcludes many original homes with ences, addresses present-day opattached barns on large (40 acres portunities, and provides future
or more) but narrow (250 feet) directions for Rhineland, Plum
lots lining a small road in clus- Coulee, Gretna and Altona.
tered villages. The area offers
2
Why was this
done?
By working together as the RPGA
Planning District, rather than
four separate planning districts,
the municipalities capitalize and
collaborate to solve complex
cross-boundary challenges of
growth, development, infrastructure, environment, heritage, and
local culture. A single long-range
integrated plan offers a cooperative regional approach where
diverse problems and solutions
Thebe
recognized
regional
planning
can
collectively
discussed,
authority and
enables
integratedThe
and
addressed,
achieved.
regional
long
term
planning.
The
multi-municipality development
RPGA
Development
is the
plan
improves
regionalPlan
planning
Furthering
the
BAPD
developfirstpresents
planning opportunities
document prepared
and
for
ment
plan
and
the
2008
Downby this Planning
Having
standardizing
fees,District.
embracing
a
town
Economic
Development
created
a
vision
for
the
region,
common planning approach, and
Strategy,
in 2011
City
of
Brandon
the
RPGA
District
described
strengthening
local
partnerships.
staff distinct
and theways
newly
electedthey
city
three
in which
council
collaborated
to produce
live
in their
and
Historically
the communities
four participatan
interdepartmental
nine
pillar
how
they
plan
to
shape
future
ing municipalities have not alRoadmap
Growth,
as
seen
development:
ways
worked for
wellCountry
together.Living,
They
above.
Each
pillar
has
a series
of
Village
Living,
and
Town
Livhave
experienced
conflict
and
specific
programs
tied
shorting.
The language
istomeancompetition
about theused
location
and
longterm particularly
strategic
policies,
to local
decision-makers
ofingful
development,
on
as
well
as
to
the
other
pillars.
who
use
the
Plan.
It
avoids
the
land adjacent to town boundarEach
pillar
is
individually
man‘bureaucratease’
planners and
ies.
The RPGAofcommunities
aged
by
a
dedicated
memberAs
of
senior
of government.
also
facelevels
a myriad
of challenges
city administration
and takes
into
there
are different ways
in which
account
relevant
environmental,
RPGA residents live and want
and(country,
social indicators.
toeconomic,
use the land
village,
This
structure
of
the
pillars
and
town) there are different policies
the supporting
project
frameapplicable
to each of
these identiwork
itself
provides
opportunified areas within the region. The
ties forDevelopment
interdepartmental
collabRPGA
Plan speaks
oration
to past
evolve
into the
not
only to
histories,
butrealm
also
collabora(c)tion,
a synthesis
toof current
realities and
future
where collaboration
and action
possibilities
for this diverse
and
merge
to
create
a
new
standard
complex region.
Background
Specifics
Prior to January 1, 2010 the RM ample private green space with
of Rhineland addressing
and the Towns
of the majority of homes having exindividually
their
Plum Coulee,
Gretna,
and Al- pansive working yardsites.
unique
local issues:
committing
good on the HUB by approving
tona,
though
well
connected
as
to ongoing community planthe plan inasearly
2012. The
City
a community,
worked
separately Overtime,
families
grew,
ning
without local
professional
of of
Brandon’s
plan,
on their own
developmany
the larger secondary
lots have been
resources
andindividual
diminishing
volThe Downtown
HUB:
Place
ment plans.
the through
formal- repeatedly
subdivided
to The
provide
unteer
energy;Upon
sorting
for People
(or City
of Brandon
ization of
the RPGAissues
Planning
a space
and place
for next
gencomplex
development
and
By-Law
No.
7010)
was
completDistrict,common
these four
separate
mu- erations to live. Local property
finding
ground
among
ed by Renaissance
Brandon
with
nicipalities
began “to
owners
have also used
subdidiverse
stakeholders;
and,capitalintefunding
support from
City
ize on the
strength of
working
vision
as mechanism
to the
divide
grating
government
silos
with
Brandonfamily
and the
Province of
together
across
boundaries
andofmanage
inheritances
local
silosand
while
negotiating
reManitoba.
to solve
complex
challenges”
through land. Thus there are
spect
for local
solutions
with
(RPGA
Plan, p.1,
2012). InThe
No- many long-time local residents
the
provincial
government.
Brandon,
vember 2011 the
Planning
strong family
historiesorinRB,
the is
Development
PlanRPGA
was one
tool andRenaissance
arms-length
City of
Brandon
District
area.
the
RPGADevelopment
communitiesPlan
usedwas
to
to an
complete
the RPGA
Developdowntown
development
organicompleted
andand
now
sits withcolthe ment Plan: 1) the background
come
together
genuinely
rezation
that
was
formed
in
2008.
for
the
development
of
interdeProvince
of
Manitoba
for
considStrong
eastern
European
roots
atlaborate. To be representative and
view, so everyone started on the
RB
operates
under
shared
fundpartmental,
improvement-driven
eration ofofministerial
approval.
tract
rapidly
inclusive
the four municipalisameapage;
2) growing
building newcomthe Plan,
ing
from
the
City
of
Brandon
and
implementation-oriented,
er
population.
The
region
has
ties, each needed to participate as
so everyone owned the pieces;
and
the
Province
of
Manitoba
planning
practices.
Rhineland,
Coulee, Gretna
become
a popular
to to
equal
projectPlum
stakeholders
– and
and 3) adopting
thedestination
Plan, to formanage
economic
incenand did.
Altona have strong agricul- Canada
for many
countries
around
the
they
malize
the
authority
contained
tives
that
provide
the
traction
One
of
the
nine
pillars
is
what
tural backgrounds and histories world.
community
gathering
within. AThe
background
review
necessary
to
enact
what
HUB
Brandon
has
called
the
‘Downlinked
to
Mennonite
settlers.
Loin
Altona
can
have
38
countries
This Plan could have been written
section occurred from Junethe
2010
plan
has
set
out
to
do.
The
Retown
HUB.’
The
HUB
pillar
has
catedminimal
in productive
farm conland, represented!
physical
form
with
community
to SeptemberThe
2010.
The buildDistrict
of downtown,
four specific
goals:stakeholdthe
“agriculture
thecreation
eco- of
housing
business
keep
sultation
but underpins
project
ingnaissance
of the and
Plan
occurred
froma
from
6th
to
13th,
and
Pacific
of
a
downtown
seasonal
pedesnomic
strengththat
in this
rural
small 2010
town scale.
They2011.
‘fit’
ers
recognized
the growing
process
September
until mid
to
Lorne,
is
covered
by
a
deditrian
HUB;
the
establishment
of
region”
(RPGA
Plan,
p.1,
2012).
with
each
other
as
they
reflect
a
needed to be open, engage resiPresently the RPGA Developcated
tax
abatement
program
building
equivalency
standards
The population
will continue
composition,
weaving
to- to
dents,
and create dialogue
amongto local
ment Plan
sits with the
Province
ofurban
the costs
toparticipating
aid
in RPGA
the redevelopment
grow
in the
District. Theyof gether
thesome
local
and associrural
the
municipalities.
of offset
Manitoba
awaiting
ministerial
ated
with
redevelopment
of
oldolder
or
heritage
buildings;
the
need main
to accommodate
history, fabrics.
Three
action phases helped
approval.As the region continues
buildings.
To ensure
that the
exploration
of options
foroffer
an en- to er
local
economies,
and also
evolve
and grow,
it is imporredeveloped
spaces
are
used,
tertainment
complex,
and;
the
a place that welcomes new resi- tant to the community to respectas
an histories
application-based
rent posabatecreation of a secondary plan for past
dents.
and manage
ment
program
by RB subthe Renaissance District, a sec- sible
futures
for run
a diversifying
sidizes
making the
tion of the
core withinpatterns
the Bran- region.
Historical
development
Thebusinesses
RPGA Development
move
into
the
downtown
area.
don
Neighbourhood
Renewal
created a land use fabric that in- Plan incorporates historical influThere
are also present-day
event-basedoparts,
Corporation
(BNRC)
designated
cludes
many original
homes
with ences,
addresses
culture andand
heritage
grants
availboundaries
of large
the (40
downtown.
attached
barns on
acres portunities,
provides
future
able to draw
festivals, concerts
thenarrow
pillar strategy
was directions
or Though
more) but
(250 feet)
for Rhineland,
Plum
RGPA
Development
Plan,
2011,
p.1
and
other
programming
into
the
only
formalized
in
2011,
the
City
lots lining a small road in clus- Coulee, Gretna and Altona.
of Brandon
made downtown.
tered
villages. has
The already
area offers
Facts of the Case
The RPGA District will be inclusive, economically
diverse, and environmentally responsible region. RPGA
will thrive with a vibrant rural culture and economy and
a shared philosophy of family and community.
23
The entirety of the visioning protions. Together they deemed it
cessisattempted
to the
engage
a crossimportant
to engage government
The HUB secondary plan
rooted in
notions
of diversity,
uniqueness,
sectionthe
of backbone
residents – though
not specific
department
and agency repreand character, which form
of six more
strategies.
at the same time or using the
sentatives at two key milestones
Those six strategies and their actions
are: ‘People
on display’
(enacted
through
same methods.
Different
tools
and long before
the transport
RPGA Plan
were
used to solicit
input includwould
be other
submitted
to the Provpolicies and design guidelines for
first-floor
storefronts,
sidewalks,
and
ground-level
ing print
media,livable
radio interviews,
ince as
for well
official
and minareas privilege the pedestrian and
support
public spaces,
asreview
the creation
and work-shopping techniques.
isterial approval. The Province
of public wireless hotspots within
the HUB); ‘Mixed-use development’
(diversifying uses
The visioning process was new
heard early in the process about
through zoning controls to create
complete
communities;
development
to many
residents
of the RPGAdenser
the residential
emerging local
issues, sofosters mixed-income residencesarea
andsobuilds
support
for local shops
and and
amenities);
‘Pedesit began
with education
lutions,
suggestions
about
surrounding
what
a
vision
was
their application
with street
respect
trian-friendly’ (active transportation corridor policy and the inclusion
of attractive
and
why
it
is
useful
for
commuto
provincial
policy.
The
RPGA
furnishings improves wayfinding and gets pedestrians out of their cars); ‘Life after dark’
nity development.
Board benefited from early feed(zoning will support the location of offices and residences above
shopping opportunities
back from inter-departmental
and within walking distance from
blocks’ (plan
policies
Theentertainment
vision createdoptions);
reaffirmed‘Building
government
representatives
in heritage redevelopment help the
bothneed
preserve
modernize
existing
HUB area),
and;
for a and
cooperative
re- theabout
the difficulties
some
buapproach.
Theof incentives
RPGA
reaucrats
would
face in
finding
‘Active and engaged merchants’gional
(establish
a system
outside of
the plan
process
statement
set theowners
direc- to locate
a fit forinlocal
circumstance visthrough RB to encourage currentvision
and future
business
the core).
tion and laid the foundation for
à-vis provincial regulation. The
working towards a collaborative,
discussion was remarkably open
It was imperative to genuinely consensus-driven Development
and honest. The process was
engage local residents in the Plan.
time consuming and undertaken
planning process in order to
in good faith in anticipation of a
write a plan reflective of resistreamlined and positive provindents and local knowledge and Public Workshops &
cial approval process.
circumstance. A community vi- Government Engagement
sioning exercise with residents of
All and all there were three forRhineland, Plum Coulee, Gretna The RPGA planning process
mal public workshops and two
and Altona laid the foundation of moved forward with a series of
more for interdepartmental repthe RPGA Plan.
resentatives from the province of
workshops held over six months
Manitoba. All of these activities
in the different communities.
included media releases, as well
The earlier identified priorities
as local media coverage in the
Community Visioning
turned into written policy options
newspaper and radio station. It
and then written policies in a
was all recorded and communiThe planning process began with draft Plan. Distilling local ideas,
cated through a project website
a broad and holistic community under the influence of provin(www.rpgaplanningdistrict.com)
visioning process facilitated by cial land use policies, about how
and information distribution to a
Manitoba Agriculture, Food and and where to develop in order to
stakeholder email list.
Rural Initiatives (MAFRI). Two achieve the vision was the most
How did the
plan develop?
public workshops were offered
and facilitators encouraged all
sectors and interests – youth,
seniors, women, local business
people – to participate in the process.
challenging part of the planning
process.
Planners, residents and elected
representatives came together to
work through the policy direc-
4
Actions & Interactions:
Looking
Back
What
came
out for Lessons Learned
of
all this work?
Many of the redevelopment
projects
in the
HUB
area began
There
were
three
distinct
ways
years
before
the
new
secondary
the communities wanted to
plan or
was
as shared
“use”,
liveapproved
on, the land.
They
initiatives
between
the
City
of
evolved from original European
Brandon and
the where
Province
of
settlement
patterns
some
Manitoba.
These projects
live
in the country,
others in have
vilhelped
navigate
the
territory
of
lages, and most who found their
transforming
departmental
and
home in towns. One of the critigovernmental
siloscame
into interdecal
questions that
out of
partmental
and
intergovernmenthe public consultation process
tal collaborations.
of
was
“where shouldThis
newseries
develredevelopments,
both
internal
opment go?” The Board idento government
and
tified
the need tooperations,
address rural
on-the-ground
the could
city, have
development
butinhow
this
boosted
momentum
to
a
high
be done? The RPGA Plan catlevel: anyone
Brandon’s
egorizes
future visiting
development
into
downtown
can reflect
clearly the
see
three
realmstoday
that both
considerable
change from
five
European
/ Mennonite
heritage
ago (particularly
seen
ofyears
the region
and align as
with
dif-in
the
before
and
after
photos
of a
ferent standards of infrastructure
9th servicing.
Street redevelopment
project
and
These categories
RB). were simply named
ofby‘living’
country, village and town to
Highlights
the past five
years
give
genuineof meaning
as local
include: administer and impleauthorities
ment the Plan.
Country Living
Princess Park, the historic site
of Brandon’s
original City
Hall,
Country
living provides
a space
transformed
an attracforwas
agriculture
as into
a priority.
tive family-friendly
greenAgricultural
roots areurban
historic;
space.
Outdoor
dancing
and
conthey define local culture and are
certs
(in summerand
andembraced
winter) and
well
documented
weeknightthe summer
programthroughout
RPGA area.
It
ming
let
the
site
act
as
an
amcelebrates a rural way of being
bassador
the HUB,
while
also for
protecting
thedrawing
abilpedestrian
traffic
ityconsiderable
of agricultural
producers
to to
Brandon’s
downtown.
adapt
and grow
their operations.
It provides space to allow for
The cutting-edge
design
newcomers
– to Canada
andofthethe
Kristopher– Campbell
community
to live-on,Skateboard
respect
Plaza
has
drawn
thousands
the agricultural land and engageof
and adults
alike. Counin youth
agricultural
activities.
try living is identified by its poThe nearly
completed
YMCA
tential
for larger
parcel
sizes,facility servicing
on 8th Street
is now
limited
(there
willone
notof
nicest indoor
recreation
cenbe the
municipal
support
for levels
tres
in
the
whole
city
of
Branbeyond what exist now), and its
fulldon.
immersion in agricultural
life. This land use designation
Westman
Immigration
Services
allows
for flexibility
and changrelocated
into
the
freshly
ing agricultural trends, as wellrenoas
vated heritage
station on
accommodates
forCPR
smaller-scale
Pacific Avenue.
agriculture
production. Within
areas identified as country living
space, future residential has to be
clustered with limited land removed from agricultural uses. It
is not typical rural residential as
imagined from an urban-centric
perspective. Land remains zoned
agriculture, not residential, and
respecting the natural features of
the land is a priority.
The City of Brandon Development Services Department has
begun the process of relocating
to the HUB area.
Entry-level condo developments
such as Paragon Lofts have been
completed and put on the market.
The iconic McKenzie Seeds
buildings have begun conversions into almost 100 condominium units with ground-level
commercial and office space
and underground parking. The
residential units are market rate,
available for purchase and lease,
and are between 800 and 1600
square feet. The project is driven by RESLAND Development
Corp., a private-sector developer
based in Vancouver. McKenzie
Towers was the first property in
the City of Brandon to achieve
TIF (tax increment financing)
status from the province, and also
5
Village Living
Manitoba is known for harsh
winters;
people are
known
has tax the
abatement
status
from
for
being
able
to
survive
them.
the City of Brandon. The McKThe
culture
of interdependence
enzie
buildings
are pictured on
among
farmers
was the
a critical
the above
left, while
Massey
success
factor
for
newcomers
Harris building is pictured on the
toabove
the Canadian
Prairies. Early
right.
settlement patterns of Mennonite
communities
the emergence
Completion saw
is looming
for the
tiny
unorganized
communities
Massey Harris redevelopment
where
people
close togethproject,
wherelived
a century-old
hereritage
andbuilding
farmedhas
adjacent
lands.
nearly reached
This
lifestyle,
the traditional
end of its village
conversion
into
where
homes
and
accessory
agresidential units by non-profit
ricultural
groups. operations coexist, embraces farm life in the midst of
close
family and
neighbours.
It
The Massey
Harris
building and
provides
a
space
for
horticulture
environs is now managed jointly
and
small the
scale
animalFriendship
husbandbetween
Brandon
ry.
Under the
the village
living
land
Centre,
Canadian
Mental
use
designation
ruraland
standards
Health
Association,
Habitat
offorinfrastructure
(like
the
proviHumanity. The conversion
sion
of some
form of wastewater
project
is becoming
a national
service)
mayof
behow,
supported.
New
case study
with public
residential
support, a development
collection ofcould
nonfill
in
the
unused
land
within
the
profits can assemble to build
villages.
The village
livingmultiland
self-contained,
integrated,
designation
is a little bitaffordable
country
form and multi-tenure
and
bit housing
town as itunits
provides
anda little
market
(and
aeven
rural, an
quasi-agricultural
depenupcoming playground
dent lifestyle option.
Town Living
A town is typically somewhere in
which
rural space
residents
to have
and park
nextgo
door!)
withmeet
their
needs
–
its
where
you
in a historic building in the core
gooftoa city’s
get milk,
see the doctor
downtown.
andMassey
get a hair
cut. isThe
town
is a to
Harris
now
home
much
easier
urban-style
planning
main-floor self-contained emerconcept
planners
to subsidized
compregency for
shelter
units,
hend.
town
useas
and The
market
rateliving
units,land
as well
designation
is the
most urbansweat-equity
mortgaged
Habiliketatdevelopment
pattern
one
will
units. The 1- to 4- bedroom
observe
region. rental
In
marketin the
andRPGA
subsidized
areas
designated
this and
wayintegrated
there is
units
are identical
support
for the
throughout
thedevelopment
building, so of
it is
diverse
living
options
that
have
impossible which is which. Subthesidized
convenience
of urban
centres,
rents are
$340 per
month
such
as
streets
and
lights,
pipes
for a 2-bedroom, falling well unandder
pavements,
gathBrandon’scommunity
average. Each
unit
ering
places,
non-farm
workplacis individually metered for hydro
es,which
and shopping
options.heat..
Town
includes electric
living designated areas are to act
as The
service
centres forshelter
the restmodel
of
emergency
theused
region.
In
the
town
living
in Massey Harris has been
areas
many municipal
services
replicated
in Dauphin,
Flin
already
and the
local govFlon, exist
Portage,
Thompson,
and
Swan provides
River. Individuals
renternment
water, sewer,
ing the
emergency
shelter
units
paved
streets,
drainage,
garbage
can remain
in them
for up
collection
and snow
clearing.
As to
two
months
and
are
occasionally
these places resemble smaller urto work for there
the non-profits.
banhired
environments,
are deBy hiring
these individuals,
velopment
standards
in place andthe
guided by a secondary plan. The
secondary
planhave
putsbeen
futureable
de- to
non-profits
velopment
onget
theback
RPGA
help them
onBoard’s
their feet
andand
transition
into
other,
radar
serves as
a tool
for more
inpermanent forms
of housing.
ter-municipal
negotiations
about
land use, infrastructure, service
The conversion
of Massey Harsharing,
and tax sharing.
ris will be completed at an estimated cost of $108 per square
foot, which is astonishingly low
for a multi-floor development,
let alone a historic building conversion. Much of the work on
the Habitat floor was performed
by volunteers, however skilled
tradesmen had to be hired to do
the plumbing, electrical and to
retrofit the building with custom
sprinkler systems and an elevator. To cut costs, the non-profits
commissioned the students of the
Crocus High Drafting & Design
program to redesign the building program from
theWiebe,
ground up.
Don
While this stage of the process
RPGA Board Chair
took two years to complete, it
meant that for a $7 million dollar
project, the total cost for a project architect to certify the plans
was just over $96,000.
“Our
municipalities
recognize the
benefits of
regional
cooperation”
large-scale development is to be
6
Outcomes:
where is it now?
The RPGA approach brought
together the Rural Municipality (RM) of Rhineland and the
Towns of Plum Coulee, Gretna
and Altona. The Plan recognizes
each community as unique – in
way of their settlement histories,
local economies and land use patterns – but facilitated a process
and offered a place for these four
communities to collaborate and
direct their collective futures.
Habitat ‘Sweat Equity’
An early goal of this plan was to
homes require future ownaddress a more forward-thinking
ers relevant
to put contribute
and
approach toa rural
certain number
of hours
of
development
in south
central
manual labour
to beachieved
eliManitoba.
This was
through
gible forthethedevelopment
program. of
country, village, and town land
use designations. A critical point
of contention at the beginning
As how
expected
with difficult
projwas
to manage
the pressure
ects, the Massey Harris confor development at the edge of
version has exceeded expected
town boundaries. A “fringe area”
timelines for completion by an
land use designation was devised
additional year and has gone over
the original budget yet the overall construction costs are still less
than half of what it would have
cost for new construction. The
McKenzie Towers conversion is
also well behind schedule, with
completion expected in another
18 months after construction begins.
to map policies and process for
inter-municipal
cooperation
to intelligently accommodate
development
regardless
of
political boundaries. There was
also a desire to have a practical
and community-based development plan and this was achieved
through the lengthy and involved
consultation process that includ ed provincial departments.
The RPGA Development Plan
was nominated for a 2012 Manitoba Planning Excellence Award.
While not winning its category
and diversity
Branit The
was scale
highlighted
for itsofwork
don’s
recent
downtown
redevelthat reflected unique local ciropment (and
by association
cumstances
and culture.
At pres-its
accompanying
revitalization)
ent, this Plan is being forwarded
not have
been possible
to would
the Province
of Manitoba
for
without
the
collabora(c)tion
and
approval by the Minister of Locontinued dedication of public,
cal Government. Only time will
private, and third-sector organitell whether or not there was any
zations.
merit granted to efforts of municipal-provincial collaboration.
The projects occurring in Brandon’s downtown HUB have
shared a number of lessons. First,
the level of coordination between
individual projects would not
have been possible without overarching guidance from supportive development plan policies.
As the BAPD development plan
is currently undergoing consultation for its’ term review, it will
be interesting to see what, if any,
policy and program changes will
be made to the urban area – and
the downtown area – in particular.
Looking
Forward
Second, tools and incentives are
most effective when they are able
to be tailored to meet the needs of
individual projects on a case-bycase basis. This means that staff
needs to have a keen awareness
of organizational protocols, and
in particular, understand which
boundaries can be pushed, and
which need to remain firm. Individual staff members, for better
or worse, can exercise considerable influence in developers’
approaches to the flexible inner
intricacies of the development
approvals process. This caseby-case basis means that the
approvals process may become
convoluted, and that projects will
likely have considerably longer
lag-times, resulting in increased
carrying costs for the developer
(which is a dis-incentive to entering the development process
in the first place).
Third, these tools, while tailormade, function best when implemented in a coordinated approach
7
Lessons
Learned
Local leadership is critical
to resolve complex planning
issues in a meaningful way
The gap between provincial
policy and respect for local
circumstances remains
Municipal council
ownership is an essential
ingredient
The RPGA Plan would not have
progressed without the patient,
forward-thinking, and conciliatory involvement of the Board
Chairperson who listened and
accommodated diverse ideas and
opinions from his own municipal
council
other Mayors
and
guidedas
bywell
a dedicated
organizaCouncilors,
of the Provtion and a and
clearstaff
secondary
plan.
Whether
justifyingThe
theRPGA
redeince
of Manitoba.
velopment
a run-down
and
Board
tackledofdifficult
issues and
disused greenspace,
installing
maneuvered
complex ideological
active
transportation
elements,
forces ranging from agriculture
removing the
safety hazard
toorinfrastructure
to environment.
of crumbling buildings, having
a secondary plan provides the
public sector with the backing it
needs to press for change. On the
other hand, due to the existence
of these tools and the drive to
use them, the public-sector runs
the risk of over-subsidizing development.
The RPGA planning process represents the good intention of four
municipalities to come together
and collaborate with genuine
openness with provincial government departments in negotiating how the Provincial Planning
Regulation
will be interpreted
for
Fifth, non-profit
redevelopers,
their
communities’
physical,
eco-inthough
armed with
the best
nomic,
and often
socialwarrant
circumstances
tentions,
additionandal future
aspirations.
Theinexpeproassistance
due to their
rience
This
cess
was with
madedevelopment.
possible by the
can
have
significant
impacts
initiative, understanding and in-on
a project’s
line,
and can
volvement
of bottom
the local
Manager
draw
considerable
municipal
of Community Planning Services
attention away
fromGovother
of staff
the Department
of Local
work. In
many
ways,
ernment.
Even
then,
the however,
Board
the
completed
projects
was faced with 29 pages ofare
in- of
such value
to theirfrom
communities
dividual
comments
several
that
the
additional
collabora(c)
provincial departments three
tiveprior
leg work
in thefinal
beginning
days
to their
public is
well worth it in the end.
hearing. The lesson? Less time
and attention to collaboration
In many ways, non-profit develwith the Province until such time
opments are notoriously complias provincial departments have a
cated simply because their projprocess
in place
get their
ects are
abouttomaking
dueown
with
‘inter-departmental’
house
in orthe ‘leftovers.’ They
are,
quite
derliterally,
and begin
to genuinely
given
buildingswork
with
with
municipalities.
more
restrictions that require
Public communication and an
open invitation to participation
throughout the planning process is essential but genuine engagement of, and ownership by,
municipal officials is the most
critical ingredient to a meaningfulBecause
Development
Plan.
The planof their
financial
constraints,
non-profits
areof often
ners
role was
as much one
an
forced
to
think
far
beyond
traeducator as a planner as planning
ditional language
processes. and
By finding
concepts,
tools
other,
less over”
expensive
avenues of
were
“taken
by municipal
securing
skilled
trades
and excouncils.
pertise, non-profits can actually
do more
in heritage
conversions,
A good
plan
costs time
and
with less.
Fourth, redevelopments, particularly in the case of heritage
structures, have many uncertainties. Bringing a structure up to
modern building code, in particular, requires a level of dedication surpassing greenfield development processes. Heritage
renovations and redevelopments
have additional hurdles, longer
timelines (and often, longer still
than previously expected) as
well as the omnipresent element
of considerable financial risk.
more work, more expertise, and
more overall cost to develop than
public- or private- sector developers are willing to take on. Yet
somehow, non-profits, with considerably less financial freedom
than other organizations, make
these projects work.
money
Since the approach of tailoring
Planning
through
the complexitools and
incentives
to particutieslarof redevelopment,
multi-jurisdictional
realirenovation,
tiesand
while
respecting
the local
en-by
conversion
projects
taken
vironment
and adopting
Renaissance
Brandon,different
the City
approaches
takeand
thethe
time
and pa-of
of Brandon,
Province
tience
of municipal
officials.
Manitoba
has proven
itself No
to be
onequite
findseffective
urgencywhen
in theconsidering
completion
of a set
of planning
policies
public,
private,
and non-profit
respecting
long-term
future
of
bottom the
lines:
the next
logical
step for
the public
sector appears
a rural
region
of Manitoba.
For
to be to startwithout
thinkingtheir
more
like
municipalities
own
non-profits:
outside
of
the
box.
dedicated planning professional,
a planning consultant costs money and this is often out of reach
for many individual municipalities. It is further problematic as
the municipalities are left to find
local resources and leadership to
ensure the Plan is implemented.
8
I would like to express my appreciation for the following
individuals who helped make this Case-in-Point possible:
Authors
Jill Collinson
BA, MCP Candidate,
Author
is in the process of
finishing her Master
Caitlin Kotak
Degree inMCP
CityCandidate,
Planningisat
B.Env.D.,
completing her Master of City
the University of Manitoba
Planning at the University of
Manitoba while continuing her
employment
Manitoba
Jacquelinewith
East
Local Government.
BA (Hons), MCP,
Dillon Consulting,
is a practicing professional
planner with 20 years
experience in various
sectors across Manitoba
Nadalene Khan-Cooper, Policy Planner, Manitoba Local Government
Glen Kruck, Regional Director, Canadian Mental Health Association
Terri McCartney, Sales, McKenzie Towers
Ryan Nickel, Community Planner, City of Brandon
References and Resources
Braden Pilling, Downtown Development Specialist, Renaissance Brandon
Angie
Veilleux,
Planner,
CityReport
of Brandon
Dillon Consulting
(January
2011).Senior
RPGA Planning
District
on Consultation.
Dillon Consulting (March 2011). RPGA Planning District Background Report and
Engineering Study Report.
References
and Resources
Dillon Consulting
(November
2011).Economic
RPGA Development
Plan, Working
Across http://
Brandon’s
2008
Downtown
Development
Strategy:
Boundaries 2011-2040.
renaissancebrandon.ca/about/brandon_downtown_strategy_2008.pdf
Manitoba Intergovernmental
Affairs
and Trade. Land Use Planning in Your Community.
Brandon’s
Roadmap for
Growth:
http://brandon.ca/roadmap-for-growth/overview
Retrieved from http://gov.mb.ca/ia/programs/land_use_dev/pdf/129268_planning.pdf
The
Downtown
HUB: Affairs
The Place
for. People:
Manitoba
Intergovernmental
and Trade
The Planning Act Handbook: A Guide
http://www.brandon.ca/images/pdf/bylaws/7010.pdf
for Municipalities and Planning Districts. Retrieved from http://gov.mb.ca/ia/programs/
land_use_dev/pdf/planning_act_handbook.pdf
McKenzie Towers Development:
http://www.mckenzietowers.ca
RPGA Planning District (2012). Planning Resources. Retrieved from http://www.rpgaplan-
ningdistrict.com/planning-resources/
Renaissance
Brandon:
http://www.renaissancebrandon.ca
US Environmental Protection Agency (2012). Putting Smart Growth to Work in Rural
Statistics
Canada.
Population and dwelling counts, for Canada,
Communities.
Retrieved(2012).
from http://icma.org/en/icma/knowledge_network/documents/kn/
provinces
and territories, and census subdivisions. Retrieved March 12,
Document/301483/Putting_Smart_Growth_to_Work_in_Rural_Communities
2012 from: http://www12.statcan.gc.ca/census-recensement/2011/dppd/hlt-fst/pd-pl/Table-Tableau.cfm?LANG=Eng&T=302&SR=1&S=51
&O=A&RPP=25&CMA=0&PR=46
Images
All imagery provided by
Images (left to right)
Cover, 1 and 3: Renaissance Brandon, both from http://renaissancebrandon.ca/?page_
id=10&paged=2. 2: Author.
Page 2: Screencapture from Google Maps (March 2 2012)
Page 3: City of Brandon, from http://www.brandon.ca/images/stories/roadmap/pillars.png.
Page 4: City of Brandon, Bylaw 7010 Map 4.1.
Page 5, 1 and 2: Renaissance Brandon, both from http://renaissancebrandon.ca/?page_
id=10&paged=2.
Page 6, 1: Renaissance Brandon, from http://renaissancebrandon.ca/?page_id=10&paged=2. 2:
C. Corneau, from http://media.brandonsun.com/images/110913_massey-bldg-2.jpg.
Page 7, 1: B. Bumstead, from http://media.brandonsun.com/images/648*418/111206-habitat3.
jpg. 2: Author.
Page 8: Author.
9