Comité des services communautaires et de protection
and Council/et au Conseil
Submitted by/Soumis par:
City Operations / Opérations municipales
That Community and Protective Services Committee and Council receive this report for information.
Que le Comité des services communautaires et d'urgence et au Conseil prenne connaissance du présent rapport à titre informatif.
In June 2008, City Council endorsed the Community and Protective Services (CPS) Department 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.
Since the presentation to Council on June 25, 2008 (Report #ACS2008-CPS-DCM-0003), the CDF’s Knowledge Transfer Table (KTT), made up of academic representatives and community and data experts, identified and analyzed criteria to assist the Community Development Roundtable in the selection of neighbourhoods for the Community Development Framework (CDF). Council requested that a report back be provided regarding the results of neighbourhood selection.
The CDF is informed by the University of Ottawa’s Ottawa Neighbourhood Study, which divides the City of Ottawa into 94 neighbourhoods, complete with demographic profiles based on social and health outcomes. The neighbourhood selection process was predominantly based on empirical data analysis using key indicators such as health, socio-economic status, and school readiness. Other considerations included crime rates, demography, current neighbourhood mobilization, and the city and Community Health and Resource Centres’ capacity to partner in this community development initiative.
Based on the methodology employed and data analysis results, the following four neighbourhoods were prioritized (in alphabetical order) for the initial implementation of the CDF approach:
4. West Centretown
A consultation process with internal and community partners over the month of October was undertaken to provide feedback and flag additional considerations regarding neighbourhood selection.
The next steps include finalizing an evaluation framework, confirming membership to the Community Table, engaging City staff towards the development of the Municipal Services Table, and launching the implementation of the Framework into the neighbourhoods in the New Year.
En juin 2008, le Conseil municipal a approuvé le Cadre de développement communautaire (CDC) des Services communautaires et de protection (SCP), grâce auquel la Ville pourra mettre de côté les méthodes fragmentées qu’elle utilise actuellement pour répondre aux besoins communautaires dans les quartiers, en vue d’adopter une approche qui appuie un effort stratégique bien ciblé et coordonné visant à harmoniser les services et les ressources.
Le Cadre regroupe des bailleurs de fonds, des organismes communautaires, des résidents, des chercheurs et des services municipaux dans le but de partager l’information et de multiplier les occasions, en vue d’appuyer de façon stratégique et coordonnée des initiatives ciblées fondées sur les quartiers.
Depuis la présentation qu’elle a faite au Conseil le 25 juin 2008 (rapport no ACS2008-CPS-DCM-0003), la Table sur le transfert des connaissances (TTC), constituée de représentants universitaires, d’experts communautaires et de spécialistes des données, a défini et analysé des critères visant à aider la Table ronde pour le développement communautaire à sélectionner les quartiers pour le CDC. Le Conseil a demandé qu’on lui fasse part des résultats du choix des quartiers.
Le CDC est informé par les responsables de l’Étude sur les quartiers d’Ottawa menée par l’Université d’Ottawa, qui divise la ville d’Ottawa en 94 quartiers, en plus de fournir des profils démographiques établis en fonction des résultats sociaux et liés à la santé. Le processus de sélection des quartiers s’appuyait principalement sur l’analyse des données empiriques et faisait appel à des indicateurs clés comme la santé, le statut socio-économique et la maturité scolaire. Parmi les autres considérations, mentionnons le taux de criminalité, la démographie, la mobilisation actuelle des quartiers et la capacité de la Ville et des Centres de ressources et de santé communautaires de s’associer à cette initiative de développement communautaire.
Selon la méthodologie utilisée et les résultats de l’analyse des données, on a donné la priorité aux quatre quartiers suivants (en ordre alphabétique) pour la mise en œuvre initiale de l’approche du CDC :
4. Centre-ville Ouest
Au cours du mois d’octobre, on a entrepris un processus de consultation auprès des partenaires internes et communautaires, dans le but de fournir de la rétroaction et de présenter des considérations supplémentaires au sujet de la sélection des quartiers.
Les prochaines étapes incluent la conclusion du cadre d’évaluation, la confirmation des membres de la Table communautaire, la participation du personnel de la Ville à la création de la Table sur les services municipaux et le lancement de la mise en œuvre du Cadre dans les quartiers au cours de la prochaine année.
Over the past year, the former Community and Protective Services (CPS) Department worked to build consensus on a Community Development Framework (CDF) that brings residents and other stakeholders together to explore and implement tailored approaches in addressing community identified needs and issues within a targeted geographical area (see Appendices for CDF Partnership list). The overall goals are to increase neighbourhood capacity to enact positive change, improve planning and service delivery at both the city and neighbourhood levels, improve neighbourhood and resident health and safety, and promote sustainability of positive change.
The CDF is also an attempt to create a new way of working beyond the City 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.
For example, CDF builds on the success of the No Communities Left Behind, a South East Ottawa for a Healthy Community initiative. It is a grassroots, community engagement and empowerment strategy that has successfully demonstrated how collaborative problem-solving efforts between community members and organizational stakeholders leads to healthy, thriving neighbourhoods. It is based on four key principles: collaboration, coordination, community participation and leveraging resources.
CDF also builds on the success of the City’s own Neighbourhood Planning Initiative (NPI). 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 communities by focusing on geography of a “neighbourhood” and joining up the planning for land use and infrastructure with the human services and programs within that small geography. NPI is a planning method that applies community development principles and approaches to all aspects of planning in a neighbourhood.
Where NPI has a broader approach focused on both short and long term planning for all elements of a neighbourhood, the CDF focuses on working with communities on social, economic or general health issues in the present and short term. Over the next several months work will be done to identify where and how these two complementary initiatives will work together for maximum community benefit. An NPI report will be tabled with Council in the New Year and will identify lessons learned and opportunities for coordination and integration of the two initiatives.
The Ottawa Neighbourhood Study, lead by Dr. Elizabeth Kristjansson and a team at the University of Ottawa, is a starting point in defining neighbourhood geography for the purpose of the Framework. The study has been updated and now divides the city of Ottawa into 94 neighbourhoods, of which 87 are defined as habitable (minimum 3,000 persons/neighbourhood). Each neighbourhood in the Study comes complete with demographic profiles based on social and health outcomes and overall neighbourhood well being.
Community Development Framework Process
The CDF includes multiple components working together at the neighbourhood, community and system levels.
At the neighbourhood level, Community Health and Resource Centres initiate Framework implementation. The designated neighbourhoods work closely with service providers, City staff and various agencies through Local Steering Committees.
The community level includes a coordinating function to connect what is occurring at the neighbourhood level to the systems level. The Coalition of Community Health and Resource Centres lead the Community Table that facilitates the sharing of approaches and good practices across the No Community Left Behind sites in neighbourhoods.
At the system level, Municipal Service, Resource and Knowledge Transfer Tables contribute and provide support to the Framework:
The Municipal Services Table brings together City staff, from various municipal services, to work collaboratively on shared intervention strategies, knowledge and assets, and the identification and breakdown of organizational barriers with the goal of contributing to neighbourhood outcomes.
The Resource Table brings stakeholders with specific funding mandates together to identify various leveraging and investment opportunities to support the Framework.
The Knowledge Transfer Table endeavours to identify and share research results and standardize evaluation tools for use at the neighbourhood level. Researchers and community experts conduct studies that guide and support the implementation of the Framework.
The Community Development Roundtable works as a “community leadership team” to promote, guide and facilitate the implementation of the Community Development Framework within the City of Ottawa.
Neighbourhood-based Community developers coordinate the implementation of the NCLB Strategy development process at the local level while the CDF Coordinator represents Community Health and Resource Centres, acts as a resource to the CHRCs, collaborates with the City and community partners, brokers solutions, and ensures successful implementation of the strategy development process at the grassroots level. Lastly, City staff, known as the CDF Team, coordinates system level action planning and interaction among the various tables.
Two simultaneous processes are taking place: one at the neighbourhood level and the other at the overall systems level. At the community level, residents, community associations, businesses, front-line staff and community developers are engaged in putting the No Community Left Behind Strategy Development process in place to standardize community engagement, assessment, prioritization, planning, research and evaluation.
At the broader level, the process starts with neighbourhood action planning and moves to the next step of assessments and recommendations to the systems level. Action planning at the systems level leads to action planning at the community level, followed by implementation and participatory community-based evaluation.
The CDF will allow City staff, residents, community partners and members to 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 benefit of this framework is to provide a system 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.
The following diagram provides a visual description of the current structure and processes:
The Knowledge Transfer Table worked with Dr. Elizabeth Kristjansson and University of Ottawa’s Ottawa Neighbourhood Study to develop objective, empirical criteria for neighbourhood selection. Adhering to the CDF process, the Knowledge Transfer Table reviewed the data analysis and methodology to make recommendations to the Community Development Roundtable.
The following is a description of the data analysis, results, and considerations taken in developing the recommendations to the Community Development Roundtable.
The following empirical data and analysis were the most heavily weighted consideration in the overall decision of which neighbourhoods would benefit most from CDF involvement.
1. Neighbourhood Health and Socio-Economic Status:
Principal Components Analysis was used to analyse the empirical data variables for the 87 neighbourhoods in the Neighbourhood Study geography. Based on this analysis, an overall score was assigned for each of the following variables.
a. Low Socio Economic Status (% of households below Low Income Cut Off, % of Households unemployed), using unstandardized data
b. Poor Health (high Ambulatory Care Sensitive conditions, low Self-Rated Health, high rates of Low Birth Weight)
c. Low Early Development Index Scores (school readiness) is the percentage of vulnerable children that score below the 10th percentile in one or more of the five following domains:
1. Physical health and well-being
2. Social competence
3. Emotional maturity
4. Language and cognitive development
5. Communication skills and general knowledge
The Statistical Package for the Social Sciences (SPSS) was the then used to rank neighbourhoods from highest (could benefit most from CDF) to lowest (healthiest).
Note: Specific statistical data will not be published, as its validity is only relevant within the context of the selection process. The data is not meaningful outside of that context and is not intended for distribution as it may be misinterpreted.
Information provided by the Ottawa Police Services on neighbourhood rankings (based on the number of personal and property crimes in each neighburhood) was given secondary consideration. Since neighbourhood-level crime rates (per population) were not available, and given that crime can be viewed as a symptom of a number of other factors, crime rankings were considered as a variable providing some context on neighbourhood dynamics. The Knowledge Transfer Table further wanted to avoid giving too much weight to rankings that were representative of reported crime only.
3. Neighbourhood readiness and Organizational Capacity Consideration:
Consideration was also given to neighbourhood readiness and the self reported capacity of Community Health and Resource Centres (CHRCs) to initiate the CDF approach in their catchment areas.
The CHRCs completed brief surveys on the Levels of Resident Mobilisation based on the following questions:
1. Is there an active community association? (y/n)
2. If yes, is the community association representative of the neighbourhood residents?
3. Is there a common community hub actively used by residents? (y/n)
4. Are there regular neighbourhood events frequented by a diversity of residents? (y/n)
5. How mobilized would you rate the residents to take on changes? (High, Medium, Low)
In addition, CHRCs were asked to comment on their capacity to undertake community development initiatives under the CDF. In order to rate the CHRC as having high, medium or low organizational capacity, the following four criteria were established:
1. Internal resources
2. External resources
3. Interest in the CDF
4. Willingness to participate in the CDF within current resources
The KTT deliberated over the reliability and validity of the results of this brief survey, given that the survey was not an in-depth analysis on readiness and capacity. Ultimately the KTT decided that the survey would be considered as a guide only. In summary, all neighbourhoods have similar degrees of readiness, and CHRCs have indicated willingness and a general capacity to undertake community development initiatives under the CDF, though some expressed concerns regarding internal resources. The KTT suggested that further consultation with the CHRCs would be beneficial.
4. Additional Demographic considerations
The following neighbourhood descriptors were also used as secondary considerations:
Ø Visible Minority Distribution
Ø Recent Immigrant Settlement
Ø Aboriginal Distribution
Ø Geographical spacing of neighbourhoods selected
Based on the methodology employed the KTT short-listed eight neighbourhoods for further consideration by the Roundtable. The short-listed neighbourhoods are as follows (in alphabetical order):
* Note: The Vanier CHRC recommended that North and South be consolidated for purposes of framework consideration.
Community Development Roundtable
It was initially determined that three neighbourhoods would be identified to strategically focus all efforts and ensure the successful implementation of the Community Development Framework. Given that the measures were relatively close between two neighbourhoods, consensus was reached to increase from three to four neighbourhoods after assessing sustainability, existing resources and deployment of staff.
Based on the aforementioned methodology and results, the Roundtable selected the following four neighbourhoods to initiate the community development framework approach (alphabetical order):
It is understood that all eight short-listed neighbourhoods are priorities for the CDF. A plan will be developed to phase the CDF into all neighbourhoods over time. In the interim, neighbourhoods not participating in the framework will be supported with access to the same tools used by the four selected neighbourhoods.
The Community Development Roundtable’s final recommendation was to undertake a consultation process with community and internal partners in an effort to solicit feedback regarding neighbourhood selection.
The Knowledge Transfer Table developed the Evaluation Framework that was approved by the Community Development Roundtable. The following are the CDF goals at both the neighbourhood and system levels:
Goal #1: Increase neighbourhood capacity to enact positive change (includes collective efficacy and resources)
Goal #2: Improved planning and service delivery to achieve neighbourhood defined goals by increasing collaboration and coordination between and within city services, community agencies and their partners and residents
Goal #3: Improve health of individual residents and their neighbourhoods (includes physical health and social cohesion)
Goal #4: Increase neighbourhood safety and perceptions of safety
Goal #5: Promote sustainability of positive change at the neighbourhood and systems levels
Development of the evaluation framework was based on extensive literature reviews, an expert survey, researchers’ knowledge and consultation.
The evaluation framework provides a methodology with clear indicators for each of the above-mentioned goals and will also provide concrete and clear results on how the CDF is working. The initial evaluation design includes neighbourhood level and system level surveys, NCLB impact measures, resident feedback, outcome measurements on the data contained in the Ottawa Neighbourhood Study, participatory research methods and annual feedback and celebration forums.
A communication plan has been initiated to inform, motivate and inspire City staff and community partners to support and facilitate this new way of working.
The following are some of the communication tools to be used to inform on the status of the Community Development Framework process:
Ø CDF Update (monthly newsletter)
Ø Information Sessions (Community and Staff)
Ø Earned Media/News Releases
The consultation process indicated overall enthusiasm and support for the Framework with some constructive feedback for consideration when moving forward in the implementation of the CDF. Many of the individuals consulted expressed a keen interest for direct involvement or at the very least periodic updates. The following lists the themes that emerged from the consultations:
1) Flexibility required in definitions of neighbourhood
2) Consideration of rural communities
3) Community Economic Development/Economic Development
An effort will be made to address the above areas and continue dialogue with community partners as the CDF proceeds with implementation.
There are no financial implications as a result of this report. The Community Development Framework will draw on existing and budgeted resources.
Appendix A - Community Development Framework Partners List
The City of Ottawa Community Development Roundtable will implement the directions of Council.
Community Development Framework Partners List
Table Members (unformed at this time):
Coalition Members: (only those relating to the selected neighbourhoods will be required at the table)
Donna Gray, Manager, Strategic Initiatives/Business Planning, City Operations, City of Ottawa
Clara Freire, Program Manager, Issues Mgmt & Stakeholder Relations, City Operations, City of Ottawa
Sonia Luberti, Specialist, Policy Planning & Development, City Operations, City of Ottawa
Paul Maloney, Specialist, Business Services & Evaluation, City Operations, City of Ottawa
Wendy Royer, Project Coordinator, Business Services & Evaluation, City Operations, City of Ottawa
Lisa Petch, Community Development Consultant, City Operations, City of Ottawa