SOCIAL AND RACIAL EQUITY ÉQUITÉ SOCIALE ET RACIALE - Canadian Institute of Planners
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PUBLISHED BY THE CANADIAN INSTITUTE OF PLANNERS | PUBLIÉ PAR L’INSTITUT CANADIEN DES URBANISTES
SPRING/PRINTEMPS 2021
VOL. 61 NO. 1
SOCIAL AND RACIAL EQUITY
ÉQUITÉ SOCIALE ET RACIALE
PM 40065075
Contents Sommaire
PLAN CANADA Spring · Printemps 2021 Vol. 61 No. 1
CIP acknowledges it is located on the traditional, unceded
territory of the Algonquin Anishinaabeg people.
L’Institut Canadien des Urbanistes reconnaît que nous
sommes situés sur le territoire traditionnel non cédé du
peuple Algonquin Anishinaabeg.
Articles
PLAN CANADA is the official publication of the Canadian
“In honour of the
Institute of Planners. Plan Canada est la revue officielle
de L’Institut canadien des urbanistes. City of land remembering 10 village we have today” 38
141 avenue Laurier Avenue West/ouest, Suite/Bureau 1112 By Darrien Morton, Zoë Mager,
By Kamala Todd
Ottawa, ON K1P 5J3 Michael Redhead Champagne,
Tel/Tél. : 800.207.2138 613.237.7526 Nigaanii Wabiski Mikanak Ogichidaa
cip-icu.ca
Racial inequities in rural, remote,
PLAN CANADA is published quarterly. All rights reserved.
and northern Canadian planning 11 Freedom of movement 42
Reproduction in whole or in part without the expressed A conversation with
permission of CIP is strictly forbidden. Articles contained By Jonathan Boron, Katherine Levett,
At the Intersections editorial team
herein do not necessarily represent the views of the and Myfannwy Pope
Canadian Institute of Planners.
PLAN CANADA paraît quatre fois par année, en mars, en The case of Nigeria’s
juin, en septembre et en décembre. Tous droits réservés.
16 Care-full planning 45
Sungbo Eredo By Leslie Kern
La reproduction en tout ou en partie de cette publication
By Francis Kodjo Kwashie
sans le consentement écrit de l’ICU est strictement
interdite. Les articles publiés dans ce journal ne reflètent
pas nécessairement le point de vue de l’Institut canadien Urban planning education
des urbanistes. 21 Disability justice in the city 47
after Black Lives Matter By Thea Kurdi and Anika Abdullah
Editorial Committee/Comité de rédaction By Cecille de Laurentis
Alan Howell LPP, MCIP
Dilys Huang RPP, MCIP
Ernette Hutchings-Mason RPP, MCIP
Spatial marginality and 24 We’ve painted a 50
Shalaka Jadhav Toronto’s priority neighbourhoods rainbow crosswalk. Now what?
Kristy Kilbourne RPP, MCIP By Rahma Siad-Togane By Tiffany Muller Myrdahl
Glenn Miller RPP, FCIP
Kent Munro RPP, MCIP, Chair
Ray Tomalty, PhD
Spatial inequalities and informal
Ren Thomas, PhD, RPP, MCIP, CIP Board Liaison settlements in apartheid and Challenging from within 53
Haiqing Xu, PhD, RPP, MCIP post-apartheid South Africa 29 By Jason Syvixay and Lyla Peter
For details on how to subscribe, advertise, or contribute By Sinovuyo Lehlohonolo Mnyanda
to Plan Canada, visit
www.cip-icu.ca/Resources/Plan-Canada. Appreciating the natural heritage We are carrying
Legal Deposit/Dépôt légal National Library of Canada
Bibliothèque nationale du Canada Bibliothèque
landscapes in low income ‘hoods 33 our bundles forward 57
nationale du Québec By Shannon Holness By Kamala Todd
ISSN 0032-0544
Publications Mail/Registration #/no de Edmonton’s zoning makeover is
publication/distribution postale : 40065075
Published December 2016/CIP-Q0416/2562
an opportunity for equity 35
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Published by/Publié par:
Columns/Chroniques
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Editors: Sheena Jardine-Olade, MPlan Amina Yasin & Daniella Fergusson
& Lori Barron-Munteanu
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whole or in part without the consent of the publisher.
Research Digest 62
Condensé de recherches
SPRING • PRINTEMPS 2021 | PLAN CANADA 3
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4 PLAN CANADA | SPRING • PRINTEMPS 2021
President’s Note Note du Président
T L’
he Canadian Institute of Planners (CIP) released its Institut canadien des urbanistes (ICU) a publié en août 2020 sa Feuille
Equity, Diversity, and Inclusion (EDI) Roadmap in August de route sur l’équité, la diversité et l’inclusion (EDI), qui propose une
2020, providing a structured, measurable, and systematic approche structurée, mesurable et systématique pour intégrer l’EDI
approach to embed EDI into the Institute and across à l’Institut et à l’ensemble de la profession d’urbaniste. Bien que
the planning profession. While we are still in the initial phases nous en soyons encore aux phases initiales de la Feuille de route, l’ICU a fait
of the Roadmap, CIP has made strides to build awareness and des progrès pour sensibiliser et comprendre, en offrant une formation au
understanding, providing training for the Board, staff, and with conseil d’administration, au personnel et à la haute direction des organismes
senior leadership of planning organizations across Canada. CIP also d’urbanisme de tout le Canada. L’ICU a également organisé, en décembre
delivered a free, public webinar on the foundations of EDI in planning dernier, un webinaire public gratuit sur les fondements de l’EDI dans la
last Decembe. In May, CIP will launch an Diversity & Inclusion planification. En mai, l’ICU lancera un enquête sur perspectives sur la diversité
Insight Survey to gain insights and statistical information about the et l’inclusion afin de recueillir des informations et des statistiques sur la
profession, in which I sincerely hope you will take part. profession, et j’espère sincèrement que vous y participerez.
This is challenging work, which will put to the test our own Il s’agit d’un travail difficile, qui mettra à l’épreuve nos croyances, nos valeurs
personal beliefs, values, and biases. Yet we believe that applying et nos préjugés personnels. Pourtant, nous croyons que l’application d’une lentille
an EDI lens to our work and organization is essential for our EDI à notre travail et à notre organisation est essentielle à notre développement en
development as a profession and in the fulfillment of our ethical tant que profession et à l’accomplissement de notre responsabilité déontologique
responsibility to work for the public good. It is also important de travailler pour le bien public. Il est également important de comprendre que
to understand that each of us brings a unique perspective and chacun et chacune d’entre nous apporte une perspective et une expérience
experience, so I would encourage you to keep an open mind, uniques. Je vous encourage donc à garder l’esprit ouvert et à reconnaître que
and recognize that we can all learn from one another. Like our nous pouvons tous enseigner et apprendre les uns des autres. Comme le stipule
Professional Code of Conduct states, let’s “act toward other Members notre code de conduite professionnelle, « agissons envers les autres membres et
and colleagues in a spirit of fairness and consideration”. collègues dans un esprit d’équité et de considération ».
On behalf of the Board of Directors, thank you for being a part of Au nom du conseil d’administration, je vous remercie de faire partie de ce voyage,
this journey,
Dan Huang RPP, MCIP ¢ Dan Huang UPC, MICU ¢
About this Issue
This is a unique issue, which forms part of our EDI journey towards greater understanding and organizational evolution. It started more than
18 months ago with the work of CIP’s Social Equity Committee, when the committee’s co-chairs, Amina Yasin and Daniella Fergusson, submitted
a proposal to dedicate an entire Plan Canada edition to delve deeper into issues of social and racial equity. The proposal was approved by the Plan
Canada Editorial Committee. To provide adequate editorial flexibility and discretion, the Committee handed over the reins to the guest editors,
giving them the opportunity and space to facilitate this important dialogue. Although this approach falls outside the traditional editorial process
and procedures, this issue is presented in the spirit of an honest but critical conversation on a subject that may challenge many systemic biases.
While reflecting on this issue, it is hoped that you find it to be a testament to CIP’s adaptability, vulnerability, openness, and questioning of today’s
assumptions and norms within the planning profession.
À propos de ce numéro
Il s’agit d’un numéro unique, qui s’inscrit dans notre cheminement de l’ICU vers une meilleure compréhension et une évolution organisationnelle.
Tout a commencé il y a plus de dix-huit mois avec le travail du Comité d’équité sociale de l’ICU, lorsque les coprésidentes du comité, Amina Yasin
et Daniella Fergusson, ont soumis une proposition visant à consacrer une édition entière de Plan Canada à l’approfondissement des questions
d’équité sociale et raciale. La proposition a été approuvée par le comité de rédaction de Plan Canada. Afin d’assurer une flexibilité et une discrétion
éditoriales adéquates, le comité a confié les rênes au rédactrices, leur donnant l’opportunité et l’espace nécessaires pour faciliter cet important
dialogue. Bien que cette approche ne fasse pas partie des procédures et processus éditoriaux traditionnels, ce numéro est présenté dans l’esprit
d’une conversation honnête mais critique sur un sujet qui peut remettre en question bon nombre de préjugés systémiques. En réfléchissant à ce
numéro, on espère qu’il vous semblera constituer un témoignage de l’adaptabilité, de la vulnérabilité et de l’ouverture de l’ICU, ainsi que de sa
volonté de remettre en question les hypothèses et les normes actuelles de la profession d’urbaniste.
SPRING • PRINTEMPS 2021 | PLAN CANADA 5
Towards Social
EDITORS' NOTE
and Racial Equity
in Planning
Amina Yasin, MSc (Planning) and Daniella Fergusson RPP, MCIP
“Herein lies the tragedy of the age: not that [people] are poor, —
all [people] know something of poverty; not that [people] are wicked, —
who is good? not that [people] are ignorant, — what is Truth? Nay,
but that [people] know so little of other [people].”
W. E. B. DuBois, The Souls of Black Folk
H
istorian, civil rights activist, smooth over structural issues in favour of implement. The Committee’s relentless
and city builder W.E.B DuBois aesthetic improvements to the status quo. work inspired the development of CIP’s new
pioneered data visualizations and It remains utterly unethical for the codes of Equity, Diversity & Inclusion Roadmap, which
infographics showing systemic professional conduct to tell us to ‘respect the the Board approved in June 2020 to provide
racism in rural and city populations. Yet, diversity, needs, values, and aspirations of a structured, measurable, and systematic
in this unceded land that is Canada many the public interest,’ while not substantially approach to embed EDI into the Institute and
planners, engineers, architects, and addressing the question of ‘whose public across the planning profession. This issue of
builders are unaware of DuBois, but can interests’ the profession has been upholding Plan Canada and CIP’s involvement in OPPI’s
easily name countless white male planning for over a century in Canada. Anti-Black Racism in Planning Task Force
figures who have changed the very fabric This issue germinated on this planning are other outcomes of the Committee’s
of city life – historically in many cases tragedy, with the question, for whom work. As co-chairs, we want to express a
for the worst. Planning’s failure begins have we been planning? The question big thank you to the Committee members:
with these mapped divisions between exposes a traditional planning narrative Angele Clarke, Erika Ivanic, Jenna Davidson,
neighbourhoods, both visible on plans, like of a homogenous public that perseveres Jennifer Fix, Linda Tam, Lisa Moffatt, and
redlining, and the measured socio-economic even as planning concepts are recycled Nabil Malik. We also want to express a
outcomes, resulting in – as DuBois points and renamed. This question was discussed heartfelt thank you to Alan Howell and
out – the physical, social segregation vigorously and unpacked between the Shalaka Jadhav, whose insightful review and
and ordering of people. The concepts of editors and with CIP’s short-lived Social support were crucial from the Plan Canada
separation and segregation run through Equity Committee. Between February and Editorial Committee, as well as Sheena
our neighbourhoods, are nurtured in our November 2019 the Committee was tasked Jardine-Olade, Christine Hanlon, and Beth
education system and flourish through with developing an internally-facing gender McMahon whose support and guidance
forced assimilation into the singular vision equity strategy for the Board. The Committee were critical during the development of this
of “white urbanism,” a power, legal, and determined that CIP needs not only a gender issue. Think of this issue as an introduction.
social order structure implemented through equity strategy but also to confront and As editors, we wanted to touch on as many
restrictive covenants, segregation, land address systemic racism, white supremacy, topics as possible across the wide expanse
theft, planning euphemisms, architecture, ableism, class, and discrimination in the of planning work from human rights
development and servicing bylaws and their governance systems, practices, and policies issues in planning, long-range planning,
enforcement, and aesthetic choices that that planners influence, create, test, and transportation planning, park planning,
6 SPRING • PRINTEMPS 2021 | PLAN CANADA
development approvals, social planning, achieve just outcomes in housing, business to ensure that a more accessible issue would
economic development, and environmental licensing, transportation, community be developed, with plans to make future
planning across the public sector, private amenities, employment land decisions, issues even more accessible to people with
sector, and academic fields in rural, and other services. In other words, equity disabilities. Finally, we established principles
regional, and urban environments across is the condition that would be achieved if to guide our evaluation, which future issues
Canada and internationally. We also wanted one’s racial and socio-economic standing of Plan Canada can continue to use when
to platform authors in many stages of their no longer predicted, in a statistical sense, assessing and editing submissions:
careers, centring people and topics who one’s housing, economic and physical 1. We hold ourselves responsible to select
are often at the margins. This is, of course, mobility, health, and environmental submissions that advance progress
but one issue of Plan Canada – we couldn’t outcomes, all interrelated and interlocking towards equity.
cover everything to do with inequities in issues. This requires addressing root 2. Does this submission discuss historical,
planning, never mind all of the submissions causes of systemic inequities, not just their structural, and present-day connections
we received. We hope that readers who have outcomes or manifestations, and demands and decisions that contribute to the issue
questions about the historic and structural the elimination of policies, regulations, and conditions being addressed?
inequities engineered to divide us will use practices, attitudes, and cultural messages 3. If a “solution” is being proposed, have
this issue and the references cited as a that reinforce differential outcomes by race, unintended consequences (harm
starting point in their learning journey. ableism, gender, and other demographics, reduction) on multiply marginalized
For the purposes of this issue, we defined while otherwise failing to address populations been discussed, analyzed or
equity as proportional representation (by them. Racial equity is also a process. considered in the paper?
race, class, disability, age and gender, etc.) This means that those most negatively 4. Has the “solution” proposed addressed
of opportunities across land-use concerns, impacted by the creation of ‘race,’ and or considered the underlying systemic
including housing and all other socio- therefore the practice of racism, classism, drivers of inequity?
economic indicators of living a healthy life. ableism and colonialism – especially 5. Is the author exploring and analyzing
Equity is distinguishable from equality, systemic oppression – must be part of the a subject aligned with their lived and
which is premised on ‘sameness,’ or decision-making process about planning professional experience?
assimilation, essentially looking at treating curriculums, funding, policies, regulations, We hope that this issue is affirming for
everyone exactly the same, regardless of developments, and programs. planners and communities working towards
whether there are barriers for particular Before reviewing the submissions, we – equity, redress, and a human rights
groups. Equity recognizes that marginalized the editors – ensured that submissions framework in planning who don’t often see
populations, due to historical and current selected for this issue would be remunerated themselves represented in the field or in the
discrimination, may need additional with a stipend for those who contributed and neighbourhoods and cities that we plan for.
supports – including prioritization - to are not members of CIP, we also advocated This is for you all. ¢
NEW National Survey:
EQUITY, DIVERSITY
& INCLUSION
INSIGHTS
Have your say: May 6-28, 2021
(Note: survey will be distributed by email)
SPRING • PRINTEMPS 2021 | PLAN CANADA 7
Vers l’équité sociale
et raciale dans la
MOT DE LA RÉDACTION
planification
Amina Yasin, MSc Planning et Daniella Fergusson UPC, MICU
« C’est là la véritable tragédie de notre époque : non pas que [les gens] soient pauvres,
- tous [les gens] savent quelque chose de la pauvreté ; non pas que [les gens] soient
méchants, - qui est bon ? non pas que [les gens] soient ignorants, - qu’est-ce que la
Vérité ? Non, mais c’est le fait que les gens se connaissent si peu entre eux ».
- W. E. B. DuBois, The Souls of Black Folk (L’âme des Noirs).
H
istorien, militant des droits civils et nous enjoignent de « respecter la diversité, groupe de travail de l’OPPI sur la lutte contre
bâtisseur de villes, W.E.B DuBois les besoins, les valeurs et les aspirations de le racisme envers les Noirs dans le domaine
a été le premier à réaliser des l’intérêt public », tout en n’abordant pas de de l’urbanisme sont d’autres résultats du
visualisations de données et des manière substantielle la question de savoir « travail du Comité. En tant que coprésidents,
infographies montrant le racisme systémique quels intérêts publics » la profession défend nous tenons à exprimer un grand merci aux
dans les populations rurales et urbaines. depuis plus d’un siècle au Canada. membres du Comité : Angele Clarke, Erika
Pourtant, dans cette terre non cédée qu’est le Ce numéro est né de cette tragédie de la Ivanic, Jenna Davidson, Jennifer Fix, Linda
Canada, de nombreux urbanistes, ingénieurs, planification, en posant la question suivante : Tam, Lisa Moffatt et Nabil Malik. Nous tenons
architectes et constructeurs ne connaissent pour qui avons-nous planifié ? Cette question également à remercier Alan Howell et Shalaka
pas DuBois, mais peuvent facilement nommer met en lumière le récit traditionnel de Jadhav, dont l’examen perspicace et le soutien
d’innombrables urbanistes, des hommes de l’urbanisme, celui d’un public homogène ont été cruciaux pour le Comité de rédaction
race blanche, qui ont modifié le tissu même qui persévère alors même que les concepts de Plan Canada, ainsi que Sheena-Jardine
de la vie urbaine - historiquement, dans de d’urbanisme sont recyclés et renommés. Olade, Christine Hanlon et Beth McMahon,
nombreux cas, pour le pire. L’échec de la Cette question a fait l’objet d’une discussion dont le soutien et les conseils ont été essentiels
planification commence par ces divisions vigoureuse et déballée entre les rédacteurs pendant l’élaboration de ce numéro.
cartographiées entre les quartiers, à la fois et avec l’éphémère Comité d’équité sociale Considérez ce numéro comme une
visibles sur les plans, comme la discrimination de l’ICU. Entre mars et juillet 2019, ce introduction. En tant que rédacteurs en chef,
de type « redlining », et les résultats socio- comité a été chargé d’élaborer une stratégie nous voulions aborder le plus grand nombre
économiques mesurés, ce qui entraîne - d’équité sociale en interne pour le conseil de sujets possible dans le vaste domaine
comme le souligne DuBois – la ségrégation d’administration. Le Comité a déterminé que de l’urbanisme, qu’il s’agisse des questions
et le classement physiques et sociaux des l’ICU a besoin non seulement d’une stratégie relatives aux droits de la personne dans la
personnes. Les concepts de séparation et d’équité entre les sexes, mais aussi de planification, de la planification à long terme,
de ségrégation traversent nos quartiers, confronter et de traiter le racisme systémique, de la planification des transports, de la
sont nourris dans notre système éducatif et la suprématie blanche, le capacitisme, planification des parcs, des autorisations de
s’épanouissent par l’assimilation forcée à la la classe et la discrimination dans les développement, de la planification sociale,
vision singulière de l’« urbanisme blanc », systèmes de gouvernance, les pratiques et du développement économique et de la
une structure de pouvoir, d’ordre juridique et les politiques que les urbanistes influencent, planification environnementale dans les
social mise en œuvre par le biais de clauses créent, testent et mettent en œuvre. Le travail secteurs public, privé et universitaire, dans des
restrictives, de la ségrégation, du vol de terres, acharné du Comité a inspiré l’élaboration de environnements ruraux, régionaux et urbains
d’euphémismes en matière d’urbanisme, de la nouvelle Feuille de route sur l’équité, la au Canada et à l’étranger. Nous voulions
l’architecture, des règlements d’aménagement diversité et l’inclusion de l’ICU, que le conseil également présenter des auteurs à différents
et de viabilisation et de leur application, d’administration a approuvée en juin 2020, stades de leur carrière, en mettant l’accent sur
et de choix esthétiques qui aplanissent afin de fournir une approche structurée, des personnes et des sujets qui sont souvent
les problèmes structurels en faveur mesurable et systématique pour intégrer cette en marge de la société. Il ne s’agit, bien sûr,
d’améliorations esthétiques apportées au feuille de route à l’Institut et à l’ensemble de que d’un seul numéro de Plan Canada – nous
statu quo. Il est tout à fait contraire à l’éthique la profession d’urbaniste. Le présent numéro ne pouvions pas couvrir tout ce qui concerne
que les codes de conduite professionnelle de Plan Canada et la participation de l’ICU au les inégalités en matière d’urbanisme, sans
8 SPRING • PRINTEMPS 2021 | PLAN CANADA
parler de toutes les soumissions que nous au sens statistique, ses résultats en matière avec des plans pour rendre les numéros
avons reçues. Nous espérons que les lecteurs de logement, de mobilité économique et futurs encore plus accessibles aux personnes
qui se posent des questions sur les iniquités physique, de santé et d’environnement, autant handicapées. Enfin, nous avons établi des
historiques et structurelles conçues pour de questions interdépendantes et imbriquées. Il principes pour guider notre évaluation, que les
nous diviser utiliseront ce numéro et les faut pour cela s’attaquer aux causes profondes prochains numéros de Plan Canada pourront
références citées comme point de départ de des inégalités systémiques, et pas seulement continuer à utiliser lors de l’évaluation et de la
leur apprentissage. à leurs résultats ou à leurs manifestations, révision des soumissions :
Pour les besoins de ce numéro, nous avons et exiger l’élimination des politiques, des 1. Nous nous tenons responsables de
défini l’équité comme étant la représentation réglementations, des pratiques, des attitudes la sélection des soumissions qui font
proportionnelle (par race, classe, handicap, et des messages culturels qui renforcent progresser l’équité.
âge et sexe, etc.) des opportunités à travers les les différences de résultats en fonction de 2. Cette soumission traite-t-elle des liens et
préoccupations liées à l’utilisation des terrains, la race, de la capacité, du sexe et d’autres des décisions historiques, structurels et
y compris le logement et tous les autres caractéristiques démographiques, sans pour actuels qui contribuent à la question et aux
indicateurs socio-économiques d’une vie autant y remédier. L’équité raciale est également conditions abordées ?
saine. L’équité se distingue de l’égalité, qui est un processus. Cela signifie que les personnes 3. Si une « solution » est proposée, les
fondée sur la « similitude » ou l’assimilation les plus négativement touchées par la création conséquences involontaires (réduction des
et qui consiste essentiellement à traiter tout du concept de « race » et, par conséquent, par risques) sur les populations marginalisées
le monde exactement de la même manière, la pratique du racisme, du classisme, de la ont-elles été discutées, analysées ou prises
sans tenir compte des obstacles auxquels discrimination fondée sur la capacité physique en compte dans le document ?
se heurtent certains groupes. L’équité et du colonialisme - en particulier l’oppression 4. La « solution » proposée a-t-elle abordé ou
reconnaît que les populations marginalisées, systémique - doivent faire partie du processus pris en compte les facteurs systémiques
en raison de la discrimination historique et décisionnel concernant la planification des sous-jacents de l’iniquité ?
actuelle, peuvent avoir besoin de soutiens programmes d’études, le financement, les 5. L’auteur explore-t-il et analyse-t-il un
supplémentaires – y compris de placement en politiques, les règlements, les développements sujet en phase avec son expérience
ordre prioritaire – pour obtenir des résultats et les programmes. vécue et professionnelle ?
justes en matière de logement, de licences Avant d’examiner les soumissions, nous - Nous espérons que ce numéro sera positif
commerciales, de transport, d’équipements les rédacteurs – avons veillé à ce que les pour les urbanistes et les communautés qui
communautaires, de décisions relatives soumissions sélectionnées pour ce numéro travaillent pour l’équité, la réparation et les
aux zones d’emploi et d’autres services. En soient rémunérées par une allocation pour ceux droits de la personne dans l’urbanisme et qui
d’autres termes, l’équité est la condition qui qui ont contribué et qui ne sont pas membres ne se voient pas souvent représentés sur le
serait atteinte si le statut racial et socio- de l’ICU. Nous avons également plaidé pour terrain ou dans les quartiers et les villes que
économique d’une personne ne prédisait plus, qu’un numéro plus accessible soit élaboré, nous planifions. Ceci est destiné à vous tous. ¢
NOUVELLE enquête nationale :
PERSPECTIVES SUR
L'ÉQUITÉ, LA DIVERSITÉ
ET L'INCLUSION
Donnez votre avis : Du 6 au 28 mai 2021
(Note : le sondage sera distribué par courriel)
SPRING • PRINTEMPS 2021 | PLAN CANADA 9
SOCIAL AND RACIAL EQUITY
City of land remembering
By Kamala Todd
Who gets to be the author of the city? Before queens and pioneers and Main streets and Broadways.
Dreaming the city, upholding the charter, inscribing the stories. Before zoning and regulations and scoping and action plans.
Who claims to be the founder, builder, caretaker? Before world class city and green infrastructure and smart growth.
Designer. Expert. Innovator. Placemaker. Before stream daylighting and edible landscapes and biodiversity strategies.
Empowered to We have responsibilities,
think about, decide for, extract, name, document, divide, open up, kinship ties
graph, discover, uncover, archive, police, chart, map, plot, dig up, to our lands and waters,
restrict, renew, animate, charette, engage, determine, approve, which always fed and nurtured us.
shape, plant, timeline, narrate, by-law, manage, vision, plan
the city. Language flowing from the lands, informing laws, shaping knowledge
from specific geographies.
Remember: these are lands. Even in the densifying
city|home|lands.
Indigenous lands. Ancestral homelands.
Whose territory is this? What are the languages? Consider:
Who are the citizens? Does your city charter reflect the laws and languages of the land?
Who has been ousted, displaced, written out of the story? Relationships with stars, mountains, water, other-than-human citizens?
Accountability to all our relations – past, present, and future?
These lands were never empty or free for the taking. What assumptions inform how we shape the city and live on the land?
They have been loved and tended for millennia.
Ancestors born and dying for generations, generations These places give life.
before incorporation. We are obligated to care for them
as they have always cared for us.
Urban archives and heritage accounts leave out the truth With humility, reciprocity, ceremony, and love.
that every North American city is an Indigenous City, built on lands
rich with planning traditions, legal orders, knowledge systems,
governance systems, food systems, economies, epistemologies.
Kamala Todd is a Métis-Cree mother, community planner,
filmmaker, and educator with a Master’s degree in Urban
Geography from UBC. Kamala was the City of Vancouver’s first
Indigenous Arts and Culture Planner and was also the City's
Aboriginal Social Planner for several years. She is currently an
adjunct professor at UBC SCARP and SFU Urban Studies. ¢
10 SPRING • PRINTEMPS 2021 | PLAN CANADAÉQUITÉ SOCIALE ET RACIALE
Racial inequities in rural, remote,
and northern Canadian planning
By Jonathan Boron, Katherine Levett, and Myfannwy Pope
Structures of anti-Indigenous
Summary Sommaire and anti-Black Racism in Canada
This reflection outlines the ways in Cette réflexion décrit les façons The year 2020 brought systemic racism
which planning has and continues to fail dont la planification a laissé et and inequity into mainstream planning
Indigenous and Black rural communities continue de laisser de côté les discourse. As researchers in resource and
across Canada. In this article we briefly communautés rurales autochtones environmental planning, we see this as an
document the legacies and impacts of et noires du Canada. Dans cet article, opportunity to reflect on and examine the
systemic racism within the planning nous documentons brièvement les procedural inequities and racism within the
of major infrastructure and resource héritages et les impacts du racisme fields of rural resource planning. Canada
exploitation sectors on rural, northern, systémique dans la planification is founded on an ongoing structure of
and remote communities in Canada. des grandes infrastructures et settler colonialism, which aims to erase
Specifically, we discuss environmental des secteurs d'exploitation des Indigenous identities to secure access to
impact assessment and consultation ressources, sur les communautés territory on which Indigenous nations have
processes, drawing from examples rurales, nordiques et éloignées du sovereign claims.1 This process is evidenced
to reflect on resultant disparities Canada. Plus précisément, nous by a series of assimilation and genocide
in health, economic outcomes, and abordons les processus d'évaluation efforts, including residential schools and the
climate change impacts between urban et de consultation des impacts outlawing of Potlatches and other political
and rural communities. We provide environnementaux, en nous appuyant and spiritual practices.
recommendations that may help to sur des exemples, pour réfléchir aux Slavery was practiced in Canada from
foster truly equity-based planning in disparités qui en résultent en matière the 1600s into the early 1800s.2 The social,
environmentally-sensitive and resource- de santé, de résultats économiques et political, and economic oppression from
rich rural regions within Canada. d'impacts du changement climatique, slavery embedded anti-Black racism into
sur les communautés urbaines Canadian institutions and society, which
et rurales. Nous fournissons des works to disempower and bring violence on
recommandations pouvant aider à Black communities and individuals.
favoriser un urbanisme véritablement Slavery and settler colonialism
fondé sur l'équité dans les régions particularly underpin ongoing inequities
rurales, en matière d’environnement et among Indigenous and Black communities
de ressources au Canada. in rural areas. Black and Indigenous peoples
have historically and presently defied the
notion that rural Canada is white, along with
numerous racialized communities often
considered solely urban, including Japanese,
Chinese, and Sikh communities.
In this article we briefly document the
legacies and impacts of systemic racism
within the planning of major infrastructure
and resource exploitation sectors on
SPRING • PRINTEMPS 2021 | PLAN CANADA 11rural, northern, and remote communities
SOCIAL AND RACIAL EQUITY
in Canada. We then turn our attention Figure 1. Lincolnville, Guysborough County, Nova Scotia Landfills
to recommendations that may help to Lincolnville is a small African Nova Scotian rural community that was settled by
foster truly equity-based planningi in Black loyalists in 1784. A first-generation landfill was opened a kilometer away from
environmentally-sensitive and resource-rich the community in 1974, despite protests. In 2006, the Municipality of the District
rural regions within Canada. Throughout of Guysborough closed the first landfill and opened a second-generation landfill.
this article we provide references to case Residents assert the municipality failed to properly consult, ignored and denied
examples of racism in resource planning. attempts by residents to organize and present views, and neglected issues of race.
While our examples primarily focus on
Indigenous and Black communities, we
emphasize that the processes described
in this article and other rural planning
practices impact a diversity of rural and
remote racialized communities.
Path dependence and institutional memory
of white supremacy and settler colonialism in
our political and social systems is at the root
of procedural injustice in the environmental
assessment process, including infrastructure
siting and resource exploitation that
undermine socially just and equity-based
planning in rural and remote communities.3
Procedural injustice includes a lack of
treaty-right recognition in major project
development and colour-blind processes of
impact assessment.4 Impact assessment
rarely recognizes cumulative effects of
Unist’ot’en Protest, Vancouver. Source: Jonathan Boron.
development and fails to capture the full
holistic impact on the lands, water, and
communities affected.5 Such exclusionary
engagement processes maintain disregard including the siting of a mega waste treatment resources account for 16.9% of Canada’s
for Indigenous and Black communities’ plant in Lincolnville, Nova Scotia (Figure 1) . GDP and generate $21.4 billion a year in
abilities to consent to harmful development Undeniably, we see racism in planning government revenues. In 2019, natural
in their communities (Figures 1 and 4). and policies in urban spaces, as evidenced resources including energy, minerals
Dispossession of land represents the by exclusionary zoning, land use, law and metals, and forestry accounted
key mechanism of settler colonialism and enforcement, surveillance, and data directly and indirectly for 1.9 million
a fundamental legacy of slavery. Land is collection processes.8 Insidious acts of jobs.9 Much of the benefit of these jobs
necessary for survival through spiritual, structural racism in rural planning appear and the revenues generated flow directly
economic, and social means. Canada’s in the historic and ongoing disparities, and to urban communities in the form of the
founding, including the myth of Terra Nullius social and environmental impacts associated resulting goods and services along with
(empty land) and the development of the with land use for resource extraction and the management, investment, and logistics
Indian Act and reserve system underlie development in rural regions (Figures 1, jobs related to these industries. At the
ongoing dispossession through regional 3 and 4). This results in the suppression same time, urban communities benefit
infrastructure and resource development of rights of Indigenous peoples defending from hydropower, oil and gas, mining, and
that increasingly contribute to settler-created their land and the history of Black and other waste disposal taking place outside of their
climate change impacts.6 The inability communities of colour advocating for the communities. These decisions about land
of enslaved people to own land, reneged right to land. use and resource management create an
promises of decent land to Black loyalists, illusion for urban communities that hides
and discriminatory zoning and ownership laws Rural-Urban Disparity the impacts on rural communities. By
against Black individuals fed the segregation Urban centres in Canada benefit from the design, the Site C dam in British Columbia,
of Black and white communities.7 Segregation displacement, as a tactic of exploitation, the Lincolnville Landfill in Nova Scotia,
has allowed the development of white of Black, Indigenous, and racialized the Giant Mine site in the Northwest
communities at the expense of Black ones, communities in rural areas. Natural Territories, housing development in Six
i According to the American Planning Association, “Planning for equity is intended to challenge those planning practices that result in policies,
programs, and regulations that disproportionately impact and stymie the progress of certain segments of the population more than others.”
12 SPRING • PRINTEMPS 2021 | PLAN CANADAhave created systemic inequities that
ÉQUITÉ SOCIALE ET RACIALE
Figure 2. Six Nations of the Grand River territory, Ontario – 1492 Landback Lane includes the slow violence of environmental
Land reclamation by the Haudenosaunee of Six Nations to stop housing developments contamination, evidenced by arsenic
on land that has been a part of a specific land claim since 1989. The Haldimand poisoning in Giant Mine site (Figure 3).
Accord sets aside the title of land on six miles of either side of the Grand River for the Indigenous communities across Canada
Kanien‘kehá:ka and other Haudenosaunee. The federal government refuses to settle have had boil water advisories in place for
these specific claims, and developers continue to try to build on this territory without generations, while health experts have
proper consultation of the Six Nations community. documented cancer clusters in many
Indigenous communities.10 Importantly,
the social impacts of land and resource
decisions have had and continue to have
Figure 3. Dene First Nation Traditional Territory;
detrimental effects, as evidenced by the loss
Yellowknife, Northwest Territories – Giant Mine Site- Arsenic Deposit
of sacred and cultural sites with historic
During the operation of the Giant Mine from 1948 to 2004, arsenic poisoning as
significance, a decline in population, and
a result of gold extraction methods caused First Nation members of the Wiliideh
increasing violence against Indigenous
Yellowknives Dene First Nation to get sick, impeded on their ability to exercise treaty
people, especially women and girls, which
rights to hunt and fish, and caused the death of a Dene toddler from eating snow in
have been exacerbated by proximity to
1951. Today, the soil around the Giant Mine site has tested at nearly three times the
remote work camps.11
arsenic safe exposure limit.
Many rural, northern, remote, and
Indigenous communities are also on
the frontlines of climate change and are
experiencing increased vulnerability due
to climate change’s associated impacts.
Coastal communities are vulnerable to
the impacts of sea level rise, while all
Indigenous communities are affected by
the rapid decline in biodiversity and species
abundance which threatens food security,
subsistence living, cultural practices, and
livelihoods. Further, rural and northern
communities are often under-resourced in
their ability to address these challenges due
to provincial and federal economic priorities,
as discussed under the urban-rural
W.A.C. Bennett Dam, Peace River. Source: Jonathan Boron. disparities section of this article.12
Recommendations
Nations territory in Ontario, and fracking in meet legislative requirements (Figures 1, 2, Current environmental and resource
British Columbia have or will benefit urban 3 and 4). Further, as in the case of natural planning processes in Canada maintain
communities across the country, while gas development within Treaty 8 (Figure 4), systems of oppression and inequality
protestors and land defenders have been environmental impact assessment processes that planners can address. We provide
and continue to be criminalized. do not address cumulative impacts or several recommendations on how planning
impacts resulting from hundreds of professionals can personally, and within
Health Disparities small-scale developments that are outside their organizations, practice equity-based
Land use policy has and continues to fail EA triggering thresholds. Further, the environmental and resource planning in
Indigenous, Black, and other racialized absence of any landscape-scale planning rural communities:
communities across Canada which has and management to monitor and mitigate
resulted in increasing health disparities. overall cumulative impacts from resource 1. Commit to reconciliatory action
Indigenous, Black, and other racialized development results in widespread habitat and recognize Indigenous consent
communities have been exposed to noxious fragmentation, ecological degradation, Land acknowledgements that are not
land uses and infrastructure for the good of and unknown impacts on hydrological attached to action hold no meaning.
Canada’s economy (Figures 3 and 4). While systems – all of which impact ecological Advocate for ‘colonial audits’13 within
Environmental Assessment (EA) proponents, and social resilience of rural and Indigenous your organisation and commit to truth
who in many cases are planners, are communities. recognition. This requires meaningful
required to consult with Indigenous Decisions on land use, lack of adequate consultation that is consent-based, even
communities, often we see that these or any consultation with those affected, and if there are competing or non-existent
consultations are inadequate even if they extraction and exploitation of resources jurisdictional requirements. Indigenous
SPRING • PRINTEMPS 2021 | PLAN CANADA 13We must bring increased awareness and attention to environmental
SOCIAL AND RACIAL EQUITY
racism in Canada. We have to talk about it, acknowledge its existence,
and understand that inaction maintains these structures of oppression.
peoples must be consulted early on and
throughout these processes, provided space
to voice their concerns and most importantly,
be a part of the decision-making process.
This also requires recognition of Indigenous
jurisdiction and decision-making processes.
In many cases a lack of senior government
action on land and resource policy has
created much conflict for municipalities.
Develop strategies for de-escalation,
negotiation, and solidarity to push senior
governments to honour their responsibilities.
2. Plan for cumulative effects,
climate impacts, and community resilience
Across many jurisdictions, cumulative
Site C Dam, Treaty 8 Territory. Source: Jonathan Boron.
effects assessments are under-utilized
and lack climate impact consideration.
Social diversity is an important aspect of
socio-ecological resilience, however Figure 4. Treaty 8 Territory, British Columbia –
state-based impact assessments Natural gas drilling and fracking operations
inadequately consider or recognize Increased fracking for liquefied natural gas in northeast BC has resulted in
alternative and specifically Indigenous unauthorized dams, substantial increases in water use, and dangerous contamination
values and views within decision-making in water supply as First Nations have no control over industry activity, despite their
frameworks that may consider more inherent and treaty rights.
holistic interrelation of the impact
of development decisions.14 Further,
consideration of both intra- and inter-
generational equity factors improve the Figure 5. Site C Dam
long-term resilience of planning decisions A 1,100-megawatt hydro dam currently under construction on the Peace River in
for rural communities. Are the decisions northeastern British Columbia. Proposed in the 1970s, the project has faced many
we make today good decisions for our court challenges from First Nations who oppose flooding 128 km of the Peace
community generations into the future? River, putting burial grounds, traditional hunting and fishing areas and habitat for
Climate change impact forecasting should vulnerable species under 50 m of water.
be an important factor in project decisions.
MAKE CITIES BETTER.
Master of Urban Studies | Graduate Diploma
sfu.ca/urban Next application deadline: JUNE 15th
14 SPRING • PRINTEMPS 2021 | PLAN CANADA3. Ensure that policies, settler-colonial knowledge and create space Deacon and Baxter, 607-623.
ÉQUITÉ SOCIALE ET RACIALE
plans, and programs represent for multi-perspective decision-making. 6
Jen Preston, “Racial Extractivism and
the community you’re planning for. Finally, we must bring increased awareness White Settler Colonialism: An Examination
Review your organization’s current policies and attention to environmental racism in of the Canadian Tar Sands Mega-Projects,”
with a critical lens. Are marginalized Canada. We have to talk about it, acknowledge Cultural Studies 31, no. 8 (2017): 1-23.
perspectives centred or erased? How have its existence, and understand that inaction 7
Waldron,1-40; Deacon and Baxter, 607-623.
you prioritized marginalized voices in your maintains these structures of oppression. 8
Wim de Jong and Litska Strikwerda,
consultation process? Do your decisions “Controlling Risks in the Safe City:
incorporate an analysis of intergenerational The Rise of Pre-Emptive Practices in
inequities? How are you ensuring the Jonathan Boron is a Master of Resource Law Enforcement, Public Surveillance
maintenance or improvement of the Management (Planning) graduate and and Mental Health and Addiction Care
environmental health of communities while PhD Candidate in the School of Resource (1970–2020).” Urban Studies, November
addressing climate concerns? and Environmental Management at 18, 2020; “Disaggregated Demographic
Simon Fraser University. Data Collection in British Columbia:
4. Integrate an equity dimension The Grandmother Perspective,” British
into policy decisions. Katherine Levett is a Master of Columbia’s Office of the Human
Linked to the second recommendation, we Resource Management (Planning) Rights Commissioner, 2020, https://
need to interrogate the impacts of our future Candidate in the School of Resource and bchumanrights.ca/publications/
policy and planning decisions. Your evaluation Environmental Management at Simon datacollection; Trevor J. Wideman, “Land
and assessment frameworks should consider Fraser University Use Planning and the Making of a ‘Properly
equity questions such as: Who benefits Propertied’ Vancouver.,” Geoforum
from this? Who is disadvantaged by it? How Myfannwy Pope is a Master of Resource 120 (March 1, 2021): 46–57. https://doi.
does this impact specific communities or Management (Planning) Candidate in the org/10.1016/j.geoforum.2021.01.019.
community members? Incorporating an School of Resource and Environmental 9
“Key Facts on Canada’s Natural
equity dimension in your decision-making Management at Simon Fraser University. Resources,” Natural Resources Canada,
processes should include the use of race- https://www.nrcan.gc.ca/science-data/
based statistics that can inform how various data-analysis/10-key-facts-canadas-
institutional policies impact Indigenous, We would like to acknowledge and thank natural-resources/16013.
Black, and other racialized communities. It the Community Planning and Development 10
B. Elias, E.V. Kliewer, M. Hall, A. A.
also requires a meaningful sharing of wealth Lab in the School of Resource and Demers, D. Turner, P. Martens, S. P. Hong,
derived from development through revenue- Environmental Management for their L. Hart, C. Chartrand, and G. Munro,
sharing or community benefit agreements. feedback and input on this article. “The Burden of Cancer Risk in Canada's
Further, community employment provisions Indigenous Population: A Comparative
are already commonplace in benefit Endnotes Study of Known Risks in a Canadian
agreements, but this often equates to lower 1
Patrick Wolfe, “Settler Colonialism and Region,” International Journal of General
skill, lower wage positions. These provisions the Elimination of the Native,” Journal of Medicine, 4 (2011): 699-709.
should promote Indigenous or community Genocide Research 8, no. 4 (December 11
Reclaiming Power and Place: The Final
employment at higher levels of project 2006): 387–409.; MacKey, Eva. “Unsettling Report of the National Inquiry into Missing
management and decision-making. Expectations: (Un)Certainty, Settler States and Murdered Indigenous Women and
of Feeling, Law, and Decolonization.” Girls, Volume 1a, p.584.
5. Personal learning, self-reflection, Canadian Journal of Law and Society 29, 12
Sean Markey, Greg Halseth, Laura
and change through praxis. no. 2 (2014): 235–52. Ryser, Neil Argent, and Jonathan Boron.
The planning profession is faced with an 2
Ingrid R G Waldron, “Experiences of “Bending the Arc of the Staples Trap:
opportunity to centre racial and environmental Environmental Health Inequities in African Negotiating Rural Resource Revenues in
justice in planning and while we advocate Nova Scotian Communities,” Environmental an Age of Policy Incoherence,” Journal
for this change on an institutional and Noxiousness, Racial Inequities & Commu- of Rural Studies 67, no. January (2019):
legislative level, it must also be embodied by nity Health (ENRICH) Project, 2016, 1–40. 25–36; “Key Facts on Canada’s Natural
practitioners within these institutions. In order 3
Leith Deacon and Jamie Baxter, “No Resources,” Natural Resources Canada.
to make informed planning decisions we need Opportunity to Say No: A Case Study 13
R. Soutar, "SS-02: Advancing
to learn about the historical relationships to of Procedural Environmental Injustice Reconciliation through Major Community
the land, resources and people we’re planning in Canada,” Journal of Environmental Developments in Vancouver - Walking
for. We need to ask ourselves how we came Planning and Management 56, no. 5 Together," Canadian Institute of Planners
to be in this place? Who was here before us (2013): 607–623.; MacKey, 235-252. Elevation 2020 webinar series.
and how did they relate to this place? Who 4
Ibid. 14
Paul Nadasdy, “The Politics of TEK: Power
else is here and how do we relate to them? 5
Kevin Hanna, ed., Environmental Impact and the ‘Integration’ of Knowledge,” Arctic
By recognizing your own positionality in Assessment: Practice and Participation Anthropology 36, no. 1–2 (1999): 1–18.
relation to others, you can begin to decentre (Toronto: Oxford University Press, 2015); https://doi.org/10.2307/40316502. ¢
SPRING • PRINTEMPS 2021 | PLAN CANADA 15You can also read
