Community Consultation in the Planning Process

The Players
Everyone has a point of view. Consultation efforts are more successful when you try to understand other players’ perspectives. Think of a stool. Imagine that each leg represents a player in the planning and development process. Developers, community members and the City are all crucial for supporting good development in Edmonton. Understanding where people come from goes a long way to resolving concerns and issues.
	All players have a responsibility to be respectful of the different viewpoints, perspectives and relevant issues.
COMMUNITY RESIDENTS Community members usually become involved in the planning process when an application affects them directly, typically as volunteers. Residents learn about applications from notices, signs, ads, developers, news reports, community leagues and neighbours. Roles and Responsibilities Provide information and insight on community issues to approving authorities such as development officers and City Council. Be attentive to proposed developments and raise any concerns about their potential impact. Provide timely response and feedback, recognizing that most developers are trying to run efficient and responsible businesses. Address planning considerations, not personalities or preferences. COMMUNITY LEAGUES Organized by geographic area, Edmonton’s 145 community leagues are registered non-profit societies governed by the Societies Act.The leagues are served by (although autonomous from) an umbrella organization, the Edmonton Federation of Community Leagues. As noted in City Policy C-110, the community league structure offers a “useful mechanism for debate of area concerns and presentation of views and recommendations to Council.”¹ Connections between community residents, community leagues and the EFCL are fluid and often complex. Expertise and involvement in planning issues vary widely among the leagues. Roles and Responsibilities Be proactive in learning about, monitoring and speaking to planning and development initiatives affecting the community. Consider implementing a subcommittee to intensively investigate neighbourhood planning issues and developments. Take a leadership role in setting up information meetings, public forums and consultations to provide input on specific neighbourhood projects. Provide information and insight on community conditions to approving authorities such as development officers and City Council. Communicate representative community league positions based on research and input from whole community.
PLANNING AND DEVELOPMENT This City of Edmonton department coordinates and provides resources for planning and development matters. The department is made up of professionals with technical expertise and experience in the planning and development process. Within the department are the Planning and Policy Services Branch, the Assessment and Tax Branch and the Development Compliance Branch (see p. 81). Roles and Responsibilities Recommend policies and guidelines on land use, environmental conservation, housing and transportation for both mature and suburban neighbourhoods. Review development proposals and coordinate technical reviews to ensure all proposals follow regulations, policies and accepted planning practices. Coordinate civic action on development-related issues. Decide on development permits. Answer questions and consult on planning policies and procedures with Council members, landowners, developers, community leagues, interested parties and citizens. Speak before public meetings or formal hearings. Implement the Edmonton Zoning Bylaw, Council directives and policy. Evaluate issues from both city-wide and local perspectives.
CITY COUNCIL Thirteen elected officials represent—and make decisions on behalf of—the citizens of Edmonton. As noted in Plan Edmonton, Monitoring Our Progress, 2003, City Council decides land use and development matters, balancing infrastructure needs and land use interests to advance the City’s long-term vision. Roles and Responsibilities Set Edmonton’s planning framework through such mechanisms as the Zoning Bylaw, Plan Edmonton and area plans. Address major land use issues, such as rezoning, development and major redevelopments. Listen to and balance the concerns of developers, community members and the administration.
DEVELOPER The development industry—comprising primarily for-profit businesses—includes landowners, developers, builders, solicitors, industry associations and a variety of architectural, engineering, planning and environmental consultants. In this guide, all parties are termed “developer.” The developer could be a neighbour, someone from outside the community or even the City of Edmonton. The development industry initiates development proposals, subdivisions, rezoning, etc. Developers also prepare and/or submit proposed amendments to Area Structure Plans, Neighbourhood Area Structure Plans, Neighbourhood Structure Plans (see Glossary, p. 101), subdivision plans and various technical and development feasibility studies. Roles and Responsibilities Foster the orderly, efficient and stewardly development of land. Encourage effective public participation in the planning process. Resist capitalizing on the fact that community members are not always unified, cohesive, planning-savvy or organized. Be flexible and reasonable, even adjusting policies, project timelines and processes to effectively consult with the community and meet changes in both neighbourhood needs and the market.
PLAYERS’ POINTS OF VIEW AND EXPECTATIONS
City Council Must weigh ward interests in the context of city-wide interests, making land use decisions that reflect broader public needs and community issues. Must meet legal obligations and ensure the city functions well. Unlike Planning and Development, Councillors can consider both planning and non-planning arguments when making decisions. Expect that information is presented clearly and concisely. Expect interested citizens to make presentations or represent themselves at public hearings. Expect staff to provide technically accurate information. Expect to be lobbied by developers and the public on land use matters.
Planning and Development Professionals with technical expertise and planning experience who aim to implement policies fairly and responsibly. Expect honest and comprehensive applications. Expect timely, professional input from other departments and agencies. Expect clear direction from Council. Expect inquiries and questions from citizens and developers on applications and City policy. Expect to be engaged in the consultation process.
Developer Time and financial costs are of the essence. Developers’ livelihoods depend on timely and cost-effective decisions. May have private, sensitive business information that they choose not to share with the public and competitors for fear of compromising business interests. Expect that development applications receive fair consideration from all players.
Community League Often seen as the organized voice of the community, although the level of knowledge about planning issues varies widely among community leagues and members. As a group of volunteers responsible for a wide array of activities ranging from soccer programs to safety issues, this voice is often muted by the need to address competing demands. Expect to be heard within a fair process.
Community Residents Often have distinct insights into the history and development of an area. Typically volunteers who address development during their off-work time. Have extremely diverse opinions and perspectives, disagreeing among themselves regarding the benefits of proposed developments. Expect to be heard within a fair process.
PLAYERS ARE NOT REQUIRED TO:
Council Make decisions on development permits and other matters that are handled directly by Planning and Development.
Planning and Development Department Advocate for other players. Create bylaws or make land use decisions outside the Edmonton Zoning Bylaw. Be neutral—the City upholds the position of established and approved plans and bylaws. Share information given in confidence by any party until the development proposal becomes a formal application.
Developer Meet social, economic and environmental goals that lie outside Council-approved plans and the Edmonton Zoning Bylaw. Accept suggestions that are financially burdensome, however worthy.
Community League and Residents Be expert in all the technical, multidisciplinary aspects of a proposal. Speak as one voice for the entire community.
OTHER PLAYERS	As far as development is concerned, leagues areoften called on to represent the entire community, whether or not they are members. I believe the league is responsible to represent community as honestly as possible. –Sheila Bowker, community member
Other civic departments such as Transportation and Streets, Asset Management and Public Works, Emergency Services, Police, Community Services and Corporate Services work with Planning and Development to ensure effective review and coordination of plans, development proposals and requirements. Infrastructure decisions are made by the City department responsible for that kind of infrastructure (e.g., Transportation and Streets for roads). Other provincial and federal departments such as those that deal with the environment, community development, industry and heritage may be involved, especially with larger scale developments. Edmonton Federation of Community Leagues, the umbrella organization for Edmonton’s 145 community leagues, has a standing Planning and Development Committee to monitor and support community league interests regarding “the development of mature, suburban or prospective Edmonton neighbourhoods.” EFCL also fields questions, helping to link various players. Often, community leagues and developers request planning and community contact information, while residents generally contact their community leagues directly. As non-profit societies, community leagues are autonomous from EFCL. Similarly, the relationship between EFCL and the City is advisory, not required or legal. Edmonton Region Home Builders’ Association (ERHBA), an association of residential construction professionals, works together to make the industry stronger. Established in 1954, ERHBA now represents more than 300 member companies: builders, land developers, renovators, trade contractors, manufacturers, suppliers, designers, engineers, financial institutions and a host of allied professionals. Urban Development Institute (UDI), a national, non-profit association, represents the development industry. Members are development companies and professionals involved in the industry such as planners, surveyors, architects, engineers, contractors, lawyers, municipalities and utility companies. Edmonton is home to one of UDI’s regional offices. For contact information, see p. 111.
WHEN THE PLAYERS DISAGREE: UNDERSTANDING LAND DISPUTES Multiple parties Land use disputes are unique. Compared to other public disputes—such as policy conflicts or budget battles—land use disputes often bring more parties to the table with fewer pre-established understandings about how the disagreement ought to be resolved. Often, the disputing parties: Are unequally yoked in technical and professional expertise and available resources Have no previous relationships Are brought together in conflict, rather than in trust Have diverse interests and agendas Complex issues These parties confront an array of complex, intertwined issues. The disputes may involve comprehensive plans, development proposals, environmental cleanups, facility siting, infrastructure changes or natural resource management. ¹ Significant consequences Land use conflicts require attention to scientific and technical considerations and involve long-term (even generational) impacts. If mishandled, these conflicts can result in poor planning decisions, disgruntled residents, stalled development projects, community eyesores, wasted investments, extinguished property rights or the destruction of irreplaceable ecological resources. For these reasons and more, careful attention to consultation processes, stakeholder feedback, and the various players’ perspectives is required. As the next sections will outline, open dialogue, effective consultation and opportunities for input can alleviate potential negative effects of land development.

Multiple parties

Complex issues

Significant consequences