1. COMMUNITY
DEVELOPMENT FRAMEWORK CADRE DE DÉVELOPPEMENT COMMUNAUTAIRE |
Committee Recommendations as amended
That Council
approve:
a) the Community Development
Framework outlined in this report; and,
b) the approach to
neighbourhood selection with a report back respecting the selected
neighbourhoods.
c) that Crime Prevention Ottawa (CPO)
be included on the Roundtable for the Community Development Framework and that
the Chair of the CPO be the designated representative.
Recommandations modifiées du comité
Que le Conseil approuve :
a) le
cadre de développement communautaire expliqué dans le présent rapport; et,
b) l’approche
concernant la sélection des quartiers en faisant rapport sur les quartiers
sélectionnés.
c) l’inclusion de Prévention du crime Ottawa
(PCO) à la table ronde sur le cadre de développement communautaire et que le
président du PCO en soit le représentant désigné.
Documentation
1. Deputy City Manager's report (Community and
Protective Services) dated 2 June 2008
(ACS2008-CPS-DCM-0003).
2. Extract of Minute, 9 June 2008.
Community and
Protective Services Committee
Comité des services communautaires et de protection
and Council/et au Conseil
Submitted by/Soumis par : Steve
Kanellakos
Deputy City Manager/Directeur municipal adjoint
Community and Protective Services/Services communautaires et de
protection
Contact
Person/Personne ressource : Donna Gray, Manager / gestionnaire
Strategic Initiatives and Business Planning /
Initiatives stratégiques et planification opérationnelle
(613) 580-2424 x25684, Donna.Gray@ottawa.ca
SUBJECT:
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OBJET :
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That the Community and Protective Services
Committee recommend Council approve:
a) the Community Development Framework outlined
in this report; and,
b) the approach to neighbourhood selection with
a report back respecting the selected neighbourhoods.
Que le Comité des
services communautaires et de protection recommande au Conseil d’approuver :
a) le
cadre de développement communautaire expliqué dans le présent rapport; et,
b) l’approche
concernant la sélection des quartiers en faisant rapport sur les quartiers
sélectionnés.
EXECUTIVE SUMMARY
The Community and Protective Services (CPS) Department has worked to build consensus on a Community Development Framework (CDF) that will move the city from fragmented approaches of addressing community needs in neighbourhoods to an approach that supports a focused, coordinated and strategic effort to align services and resources. The Framework brings together funders, community organizations, residents, researchers and city services to share information and leverage opportunities to support targeted neighbourhood-based initiatives in a strategic and coordinated fashion.
Specifically, the CDF is designed to:
q A Community Table (shared experience)
q A Community Development Roundtable (shared leadership)
q A Knowledge Transfer Table (shared knowledge)
q A Resource Table (collaborative processes)
q A Municipal Services Table (coordinated services)
RÉSUMÉ
Les Services communautaires et de protection
(SCP) ont rallié un consensus sur un cadre de développement communautaire (CDC)
qui permettra à la ville de répondre aux besoins communautaires des quartiers
non plus par des approches fragmentées, mais bien par une approche qui appuie
un effort ciblé, coordonné et stratégique d’harmonisation des services et des
ressources. Ce cadre réunit les bailleurs de fonds, les organismes
communautaires, les résidents, les chercheurs et les services de la ville afin
qu’ils puissent échanger de l’information et exploiter les débouchés
nécessaires à la mise en place d’initiatives de quartier grâce à des approches
stratégiques coordonnées.
Plus précisément, le CDC vise les
objectifs suivants :
q
Une
table communautaire (expérience commune)
q
Une
plénière sur le développement communautaire (leadership commun)
q
Une
table sur le transfert des connaissances (savoir commun)
q
Une
table sur les ressources (processus collaboratifs)
q
Une
table sur les services municipaux (services coordonnés)
BACKGROUND
In September 2005, as part of consideration of its three year strategic plan, the Community and Protective Services Department received direction to develop a collaborative coordinated model of community development to address social needs and issues.
Over the past three years, CPS has seen the benefit of coordinated, collaborative solution building across its branches, as evidenced through the success of its priority projects (ACS2008-CPS-DCM-0002). At the same time, this work has assisted in identifying where changes need to be made in our way of working. Currently, we continue to see:
§ Multiple disconnected problem-solving initiatives
§
Complex
funding mechanisms and multiple funding requests
§
Limited
resources and a lack of sustainability
§
A
need for increased accountability and performance indicators
§
A
need for place-based/solution focused approaches
A community development approach with an agreed upon vision, principles, structure and evaluation framework will enable municipal staff to align and focus efforts under a common philosophy and way of working. This model of working will enable directed resources and proactive services that meet the expressed needs of communities. It encourages staff to collaborate and integrate around service provision in a specific geographical area, e.g., neighbourhoods, thereby decreasing duplication and increasing the connection staff has to the community. It also opens the potential to further leverage community-based opportunities and resources.
The Community Development Framework (CDF) is also an attempt to create a new way of working beyond CPS and into the community. This model is built on community development principles and community-based problem solving and is derived from substantial consultation and research of neighbourhood-based initiatives.
Our experiences over the past several years and our consultation with our community partners has indicated that the recent demand for issue and place-based interventions is creating a situation where City and community services must stretch within limited resources to adapt to changing needs of communities. As one size does not fit all, we continue to respond and leverage resources to meet community needs with the best of intentions, but without a service integration or strategic focus. This situation leads to resource drain, and prevents maximum benefit in neighbourhoods that need it most. Our community partners are in agreement that we require a common approach to this situation.
The definition of neighbourhoods for the purpose of the Framework is
informed by the neighbourhood geography used in the Ottawa Neighbourhood Study,
the work of Dr. Elizabeth Kristjansson and the University of Ottawa Team. The Study divides the city of Ottawa into 89
neighbourhoods complete with demographic profiles based on social determinants
of health and neighbourhood wellbeing.
Neighbourhoods in the study were delineated using a specially developed
methodology built on qualitative and quantitative analysis. Research from the social sciences and the
field of ecology guided development of the methodology. An analysis of community health indicators
such as: built environment, food and
nutrition, health care services, education, financial services, recreation and
natural environment was used to build the neighbourhood profiles. The Study then mapped the relationship between the community indicators
such as neighbourhood income, neighbourhood resources, and health outcomes to
produce neighbourhood profiles. Actual boundaries were drawn based on existing
physical barriers, demographic similarities, real estate maps, and research
team member knowledge. Some
neighbourhoods were merged so that minimum sampling requirements for health
analysis could be met (about 4000 persons/neighbourhood). The City was part of
the work team for this project.
Each neighbourhood profile in the Neighbourhood Study shows both
strengths and needs of individual neighbourhoods. The aim of this study is
to better understand the physical and social pathways through which
neighbourhoods in Ottawa achieve health.
The knowledge can be used for neighbourhood planning and as a
stepping-stone to coordinating efforts to have a more substantial impact and to
improve the places in which citizens live.
CPS is using the data in The Ottawa Neighbourhood Study as the starting point from which to develop objective, empirical criteria for neighbourhood selection under the Framework. CPS has engaged researchers to create a methodology using statistical analysis of criteria to produce a ranking of communities who would benefit from this form of collaborative approach. These criteria will focus on the social determinants of health, such as physical health, poverty, early childhood indicators and crime, as well as other indicators of community strengths. The Department will report back with the selection results including the neighbourhoods recommended to participate in the Community Development Framework.
Three neighbourhoods will be chosen at one time for application of the Framework, based on the above noted analysis and ranking. This prioritization is necessary in order to ensure the maximum, sustainable positive impact to each chosen neighbourhood, and because the City cannot initiate the level of investment in all neighbourhoods at the same time. Existing City investments in other neighbourhoods will continue, but where possible will be tailored towards informing the Framework’s goals. The Community Development Framework will endeavour to re-align existing services and identify new and resources to support its implementation without taking away from existing services. Duration of Framework activity in a particular neighbourhood will depend on evaluation results over time.
The Community Development Framework adopts the core principles of the No Community Left Behind strategy, a local social development initiative to prevent crime and address social determinants of health through a collaborative approach and integration of services at the neighbourhood level.
Since
July 2005, working in close partnership with various other agencies, South East
Ottawa Centre for a Healthy Community (SEOCHC) has effectively engaged and
supported social housing communities to restore their sense of safety and pave
the way for effective service delivery through the No Community Left Behind
initiative (NCLB).
This initiative has
brought together community development specialists, community policing
professionals and neighbourhood activists to address factors that contribute to
crime, victimization, fear of safety, and social inclusion.
As part of the NCLB
strategy, communities conduct needs assessments, define problems, assess
strengths and weaknesses, strategically mobilize around areas of common interest,
collaborate and develop and advocate for solutions.
The
results of the NCLB strategy’s community health and safety surveys indicate
that between 2005 and 2007, perceptions of safety have increased in the
neighbourhoods where the strategy is employed.
For instance in 2005, 34% of residents reported feeling safe compared to
64% in 2007[1].
The Community Development Framework also builds on the experience and recent success of the City’s Neighbourhood Planning Initiative (NPI).
The Neighbourhood Planning Initiative (NPI), one of CPS’s twelve strategic priorities, implements the concept of collaborative community planning through a neighbourhood focus, coordinated resources in the community and between City departments. The NPI was identified to develop a new process to improve the way the City of Ottawa plans, designs, and (re)develops neighbourhoods across the City. Through collaboration and dialogue between City departments, residents and community stakeholders, the social, economic and physical infrastructure of local neighbourhoods, are enhanced based on the identification of local needs and priorities.
The intent of NPI is
twofold: to create active engagement with citizens in the planning of their
neighbourhoods and develop strategies; and processes to better coordinate all
planning and related City services in a geographic area. NPI seeks to improve the physical
infrastructure of communities by focusing on geography of a “neighbourhood” and
joining up the planning for services and programs within that small
geography. NPI is a successful planning
tool that embeds community development principles and approaches that can be
applied to any neighbourhood.
One key learning from NPI was that geographic neighbourhoods must be a size that is concrete, manageable and meaningful, and the neighbourhood experts must be people who live there. These factors lead to reality-based decision-making. When provided with current and accurate information, communities can make good decisions.
The longer term planning lens of NPI, however, does not fulfill the need for a citywide, coordinated service approach in working with communities on social, economic or general health issues in the present and short term. The Community Development Framework is that approach and will work as a complement to the planning focus of NPI.
Community Development Framework
The Community and Protective Services Department sees value in building on already successful community-led initiatives. As such, the Community Development Framework expands on the NCLB approach by broadening the scope beyond crime prevention in social housing neighbourhoods and builds on the NPI by developing a citywide structure to support communities to grow into and remain healthy communities.
The goal of the Community Development Framework (CDF) is to create healthy and safe environments and provide accessible, integrated and holistic services to communities in need.
Objectives
The strategic objectives of the
Community Development Framework are as follows:
q A Community Table (shared experience)
q A Community Development Roundtable (shared leadership)
q A Knowledge Transfer Table (shared knowledge)
q A Resource Table (collaborative processes)
q A Municipal Services Table (coordinated services)
Community Level
The Coalition of Community Health and Resource
Centres (CHRC’s) have agreed to lead the Community Table component of the
Framework that will facilitate the sharing of approaches and good practices
across NCLB sites in neighbourhoods.
This table will align neighbourhood-based community developers,
currently working in CHRC’s, towards the Framework objectives and will create a
mechanism for collaboration across grassroots community organizations and with
residents.
As the three neighbourhoods are selected,
related CHRC’s will be identified to initiate Framework implementation at the
neighbourhood level, such as tailoring the NCLB planning approach in their
respective communities. As described earlier in this report, the NCLB strategy
will work with existing neighbourhood groups, citizens, and leaders to identify
the neighbourhood’s needs, assets and priorities for action.
At the Community Level, the City will play a role as a service provider, but will not initiate the community level activities. Residents, facilitated by CHRC’s will initiate these activities.
The Community Development Roundtable will work as a “community leadership team” to promote, guide and facilitate the implementation of the Community Development Framework within the City of Ottawa.
This “community leadership team” will focus on the Framework to ensure its functioning, evolution and promotion. The Roundtable’s key activities will include:
· convening key stakeholders to facilitate decision making, remove organizational roadblocks and inform policies;
· identifying and prioritizing the neighbourhoods for greatest benefit;
· facilitating the collaboration of the stakeholders through the various component tables;
· mobilizing new and existing resources;
· aligning services and resources to community needs; and
· providing oversight and leadership for the overall strategy (e.g. monitoring and tracking, evaluation and accountability processes).
In turn, the component tables will provide support and guidance to the Leadership Roundtable in their decision-making.
§ Community Representative (TBD)
The Knowledge Transfer Table will also
endeavour to identify and share research results and research and evaluation
tools that may be standardized to be used at the neighbourhood level.
The Resource Table brings together stakeholders with specific funding mandates to work together to identify various resource leveraging opportunities to support the CDF. This Table will focus on maximizing stakeholder engagement, investment of resources and sustainability of initiatives across neighbourhoods. The Table will also monitor applications received for funding under the Framework and consider their collective impact on sustainability of community development initiatives within the city of Ottawa.
The CPS, Deputy City Manager’s office will assume responsibility to create a community development team to specifically support the Framework. Staff from this office will be reallocated into this team, which will be responsible for supporting the operation of the Framework structure, implementing system-level work activities and ensuring communication structures are in place to maintain momentum and transparency.
The community development team will establish the Municipal Services Table. The intent of the Table is to bring together staff from across CPS, including library and emergency services, and the corporation to contribute to and support the Framework. The Ottawa Public Library (OPL), as a municipal library service with a strong community development focus, will begin as a member of the Municipal Service Table and explore other roles as the Framework develops. Staff will work collaboratively to share community intervention strategies, knowledge and assets, identify and breakdown organizational barriers with a goal to contribute to neighbourhood outcomes. The overall goal will be to align city services and investments and promote horizontal communication and decision making in order to maximize city resources and demonstrate coordination of city services at the neighbourhood level.
FINANCIAL IMPLICATIONS
There are no financial implications as a result of this report. The Community Development Framework will draw on existing and budgeted resources.
The City of Ottawa Leadership Roundtable will implement the directions of Council.
COMMUNITY
DEVELOPMENT FRAMEWORK
CADRE DE DÉVELOPPEMENT COMMUNAUTAIRE
ACS2008-CPS-DCM-0003 CITY WIDE / À L'ÉCHELLE
DE LA VILLE
Mr. S. Kanellakos, Deputy City
Manager, Community and Protective Services (CPS), introduced Dr. E.
Kristjansson, University of Ottawa Institute of Population Health, who spoke to
a PowerPoint slide presentation, which served to provide the Committee with an
overview of the Ottawa Neighbourhood Study. Following Dr. Kristjansson’s presentation, Mr. Kanellakos and Ms.
D. Gray, Manager, Strategic Initiatives and Business Planning, CPS, jointly
spoke to a PowerPoint slide presentation regarding the Community Development
Framework. Copies of both presentations
are held on file with the office of the City Clerk.
Councillor Cullen stated that he had
been able to obtain the neighbourhood profiles on the website and asked if
there was the ability to provide feedback and correct any data. Dr. Kristjansson said that there was and it
was welcomed.
In response to Councillor Cullen’s
question on updated information such as 2006 Census Data being available, Dr.
Kristjansson replied that they were working to redefine neighbourhoods and to
get census data and it was hoped to be ready by the end of August.
Dr. Kristjansson praised Mr.
Kanellakos and his staff for their efforts.
Mr. Kanellakos asked for members of
the Community Development Round Table to join him at the table, Joanne Poirier,
Allan Dooley, Barb McInnis and Chief Vern White (who had to leave) and spoke on
the community initiative. He also
introduced members of his department who have assisted, Sara Redfern and Donna
Gray. He stated that Ms. Gray has been
the lead on this project.
Ms. Gray then spoke to a PowerPoint
presentation outlining the measure of progress and shared
responsibilities. A copy of this
presentation is held on file with the City Clerk’s office. Ms. Gray ended her presentation explaining
the last slide on the Community Development Framework, its structure and
approach. She stated that there would
be three or four neighbourhoods selected as a test project.
Councillor Feltmate stated that it
sounds like the City’s coming on side with work that community resource centres
have been doing for years. She asked if there would be an evaluation with a
neighbourhood or two that are not part of the first projects for comparative
purposes. Ms. Gray stated that they
would start with baseline comparisons but that this issue would be addressed by
the research group to be part of the framework.
In response to Councillor Feltmate’s
question on the long-term approach and how this would roll out Ms. Gray stated
that this is a new way of delivering services in our neighbourhoods and what
efforts would be needed to sustain in the long-term. This is a new philosophy, not a short-term strategy. There is a definite value of what comes out
of directed targeted research that will be shared with all communities and the
first interventions are to serve as starting point.
Councillor Feltmate asked what
criteria would be used. Ms. Gray stated
that the core indicators around social determinants for community health,
socio-economic, health, early childhood development and crime would be the
first set of criteria. The criteria
have been developed through community consultation and the intent is that in
two years of research that would give a good overview.
Ms. Joanne Poirier, Director, Ottawa
Community Housing stated her support to the whole concept.
Councillor Bedard thanked all
presenters and staff responsible for this initiative and stated that it was a
long time in coming. He found it
encouraging seeing that the city will be going forward in same direction as community
organizations. He asked what the
difference was between this and neighbourhood planning that was done in
Vars. Ms. Gray stated that this
initiative is about neighbourhoods having a voice and how they’ll be developed
in the long-term and trying to determine service gaps.
Russell Mawby, Director, Housing,
Community and Protective Services stated that the main lesson being learned is
intensive, long-term strategic plan.
There is an internal steering committee with 3 Deputy City Managers to
consider the next steps. He said that a
report in the fall would focus on interdepartmental connections. He mentioned a parallel process where key
neighbourhoods will be determined where service renewal is required.
Councillor Bedard said that the
report speaks to involvement of community resource centres. He asked how Crime Prevention Ottawa would
be involved. Ms. Gray replied stating
that Crime Prevention Ottawa sits on the resource table.
Vice-Chair Qadri added his voice of
congratulations to staff and community organizations for their efforts in
creating the process and moving it forward.
Moved by Councillor Leadman
That Item 2 be
amended by including Crime Prevention Ottawa (CPO) on the Roundtable for the
Community Development Framework and that the Chair of the CPO be the designated
representative.
CARRIED
Mr. Kanellakos stated that from a
staff perspective, they are supportive of the chair of CPO being at leadership
level and feels it would be would be totally appropriate.
That the Community and Protective
Services Committee recommend Council approve:
a) the
Community Development Framework outlined in this report; and
b) the approach to neighbourhood selection
with a report back respecting the selected neighbourhoods.
c) that
Crime Prevention Ottawa (CPO) be included on the Roundtable for the Community
Development Framework and that the Chair of the CPO be the designated
representative
CARRIED
as amended
[1] Additional information and results of NCLB strategies can be obtained at www.nocommunityleftbehind.ca