LEVERAGING GROWTH AND
MANAGING CHANGE
PRINCE EDWARD COUNTY
STRATEGIC CULTURAL PLAN
COMMISSIONED BY:
THE ECONOMIC DEVELOPMENT DEPARTMENT
COUNTY OF PRINCE EDWARD
Submitted by:
The Corporate Research Group
In association with
March, 2005
Prince Edward County Strategic Cultural Plan - Draft Report
PRINCE EDWARD COUNTY
STRATEGIC CULTURAL PLAN
Table of Contents
Acknowledgements ......................................................................................................... i
EXECUTIVE SUMMARY ........................................................................................................ ii
1.0 STUDY CONTEXT ....................................................................................................... 1
1.1
Sustainable Prosperity and Quality of Place ................................................ 1
1.2
Study Purposes ............................................................................................... 2
1.3
Methodology .................................................................................................... 3
1.4
Cultural Planning Assumptions..................................................................... 4
2.0 A PORTRAIT OF PRINCE EDWARD COUNTY ................................................................. 5
2.1
Statistical Portrait............................................................................................ 5
2.2
Official Plan...................................................................................................... 7
2.3
Economic Development.................................................................................. 8
2.4
Vision 2009..................................................................................................... 11
2.5
Summary ........................................................................................................ 12
3.0 MAPPING CULTURAL RESOURCES ............................................................................ 14
3.1
Tangible Cultural Resources........................................................................ 14
3.2
Intangible Resources – County Character and Identity............................. 16
4.0 WHAT THE COMMUNITY SAID – CONSULTATION FINDINGS......................................... 18
4.1
Advisory Group ............................................................................................. 18
4.2
Survey Results .............................................................................................. 19
4.3
Interviews....................................................................................................... 20
4.4
Public Meeting ............................................................................................... 20
5.0 CULTURAL PLANNING FRAMEWORK ......................................................................... 23
5.1
Vision.............................................................................................................. 23
5.2
Cultural Governance – Building Community Capacity.............................. 26
5.3
Identified Strategies and Actions ................................................................ 32
6.0
DIRECTIONS FOR A COUNTY CULTURAL POLICY STATEMENT .................................... 35
LIST OF FIGURES .............................................................................................................. 36
APPENDIX A: CULTURAL RESOURCE FRAMEWORK ............................................................ 37
APPENDIX B: CULTURAL LABOUR FORCE FRAMEWORK .................................................... 40
Prince Edward County Strategic Cultural Plan - Draft Report
This diagram illustrates the underlying assumptions guiding the Prince Edward County cultural
planning process.
Figure1. Cultural Planning Framework
Prince Edward County Strategic Cultural Plan - Draft Report
Acknowledgements
The Corporate Research Group and EUCLID Canada wish to thank all those who contributed to
the study.
Advisory Group
Peggy Burris, Chair
Ann Wardrop
Barbara Sweet
Barry Braun
Dan Taylor
David Sweet
Elizabeth Hunter
Elizabeth Murray
Ernie Margetson
Greg Garrett
Keith Taylor
Monica Alyea
Norah Rogers
Peta Hall
Rebecca LeHeup-Bucknell
Susan Holland
Theresa Durning
Ex-Officio
Blair Harris, Ontario Ministry of Culture
Beverly Cameron, Ontario Ministry of Tourism and Recreation
Staff Lead
Dan Taylor, Director of Economic Development
Financial Support
County of Prince Edward
Industry Canada
Community Members
Thanks to the many who responded to surveys, participated in interviews and attended public
meetings for their thoughtful guidance and expertise.
Press Coverage
Thanks to Theresa Durning for her lively and insightful newspaper articles that drew attention to
the study process in the County.
Consulting Team
Dr. Greg Baeker, Managing Director, EUCLID Canada
Dr. William Lowe, Director, Communications Division, the Corporate Research Group
Daniel Nixey, MA, CRE, Senior Vice-President, the Corporate Research Group
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Culture Division
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Prince Edward County Strategic Cultural Plan - Draft Report
EXECUTIVE SUMMARY
A Strategic Economic Development Plan prepared for Prince Edward County in 2004 identified
Culture as one of four pillars of Prince Edward County’s economy (along with tourism, agriculture
- including viticulture, and industry and commerce). Underlying all four pillars is the overall quality
of place of the County. The Plan further notes that culture and tourism were significantly
underdeveloped relative to their economic potential.
In this context, in November 2004 Council approved the development of
a Cultural Plan for the County. The goals were:
y
y
y
Underlying the four pillars of the
County’s economy is its overall
quality of place.
To define a more systematic approach to cultural development;
To leverage greater benefit from the County’s rich cultural resources
in support of economic and community development; and
To help improve the environment for both foreign and domestic investment.
Between November 2004 and March 2005 a consulting team drawn from the Corporate Research
Group (CRG) and EUCLID Canada surveyed, interviewed and met with more 300 County
residents, representatives of the cultural and business communities, educators,
environmentalists, and other community members. These consultations, together with their
analysis and additional research, led to conclusions set out in this report.
Culture and Cultural Resources
The Cultural Plan identifies immediate actions and initiatives needed to advance cultural
development. However, its longer term value lies in establishing a set of assumptions to guide
future planning and decision-making by the County and its community partners. This begins with
an agreed upon understanding of how ‘culture’ is defined and understood.
In the widest sense, culture is ‘the unique ways of life that characterize a community or social
group.’ While this formed the ultimate context for thinking, the Cultural Plan focuses on the more
manageable matter of cultural resources.
Cultural resources are all those elements – both tangible and
The Cultural Plan sets out a series
intangible – that combined to define the unique identity of the County:
of assumptions to guide long-term
its built environment and cultural landscapes; heritage sites; cultural
planning and development.
facilities; arts, heritage and cultural organizations and businesses;
movable objects and collections; programs and activity. Cultural resources also embrace the
more intangible matter of the County’s identity – the symbols, characteristics and stories that
define its overall character.
The Cultural Plan establishes a framework for mapping these cultural resources in more
systematic and comprehensive terms, making these accessible for future development.
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A Cultural Planning Framework
Beyond definitions and understandings of culture and cultural resources the Cultural Plan sets out
a series of additional assumptions to guide long-term planning and development.
Vision – definitions, conceptual frameworks and assumptions, and guiding principles.
Cultural Governance – an overall cultural governance system for the County identifying both key
Partners and the planning tools or Cultural Levers for building capacity to advance cultural goals.
Specific actions identified through consultations are mapped against the following Levers.
•
•
•
Planning and Policy
Investment and Resource Development
Capacity Building
• Partnerships and Collaboration
• Leadership Development
• Research and Information
• Marking and Audience Development
An Annual Cultural Summit should be held
to support dialogue, collaboration and
priority setting.
Actions in each category have not been prioritized. It will be the responsibility of the County and
its partners to determine which actions the community can mobilize behind, and in what order of
priority. However, two immediate first steps are recommended:
Establish a Culture Steering Group – extend the mandate of the Advisory Group struck for the
Cultural Planning Study to guide initial phases of implementation.
Plan a Cultural Summit – plan for the first annual summit to support continued dialogue,
collaboration and priority-setting.
Strategies and Actions
Three broad strategic themes emerged from the consultations as both requiring attention and
presenting opportunities. Potential actions are summarized under the three strategic themes but
again have not been prioritized.
Managing Growth – taking steps to ensure needed growth and development does not
undermine quality of place. Includes:
•
•
Managing growth and development in Picton
Managing growth and development across the County
Cultural Places and Spaces – extending and improving the places where culture happens in the
County. Includes:
•
•
Promote an integrated vision of cultural places in the County (‘Hub and Spokes’)
Spaces and facilities – improve and extend access to cultural venues across the County
Cultural Tourism – build on existing strengths and overcome barriers to collaboration
•
•
•
•
Extend the season – build shoulder seasons through programming
Strengthen tourism packaging - based on an interpretive framework for the County
Exploit strong links (cluster) of cultural, eco-, and culinary tourism
Strengthen marketing and promotion - through collaboration and shared investment
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1.0
STUDY CONTEXT
1.1
Sustainable Prosperity and Quality of Place
A Strategic Economic Development Plan for the County completed in 20041 identified the creative
economy and arts, culture and history/heritage as one of four pillars of future economic prosperity
– along with agriculture, tourism, and commerce and industry.
The Strategy went further to argue that connecting all four
pillars in this economic cluster is the quality of place enjoyed
by the County. The County joins leading municipalities in
recognizing that economic prosperity cannot be separated
from a concern for ensuring a high quality of social and
cultural life in the community.
As Florida puts it, cities’ first concern
should not be where companies choose to
locate, but rather where people choose to
locate; investment and business will follow.
Research by Richard Florida, Meric Gertler2 and others demonstrate that quality of place has
become a core competitive advantage for communities in attracting and retaining resident, which
in turn attract new business and investment. Among the attributes people seek in communities
are uniqueness and authenticity – a product of a distinctive local history, built heritage and natural
landscapes, and a lively and diverse arts and cultural community.
The interconnections among these issues are illustrated below.
Figure 2: Sustainable Prosperity3
Sustainable Prosperity
Clusters
will develop
Diverse companies
will be created
Attract people with the desire
and resources to invest
in diverse industries
Develop and coordinate existing strengths:
Tourism; Culture; Agriculture; Industry/Commerce;
Residential Development
1
Prepared by WCM Consulting.
Meric S. Gertler, Richard Florida, et. al. (2002). Competing On Creativity: Placing Ontario's Cities in North American Context,
Prepared for the Ontario Ministry of Enterprise, Opportunity and Innovation and the Institute for Competitiveness and Prosperity.
3
Adapted from WCM Consulting (2004). A Strategic Economic Development Plan for Prince Edward County.
2
The Corporate Research Group
Culture Division
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Prince Edward County Strategic Cultural Plan - Draft Report
1.2
Study Purposes
With these understandings as the context, County Council commissioned a Cultural Plan as a
first step in establishing a more systematic and strategic approach to cultural development. More
specifically, the plan was to:
•
•
•
Establish a shared vision and planning framework for the
The timing of the three planning exercises
County and its partners to work together effectively;
presents strong potential for coordination
Identify actions to be taken to build on cultural and tourism
and integration of visions and plans.
strengths and overcome barriers, including weak links
within the cultural sector and between the cultural sector
and the business community;
Provide direction on the development of a Cultural Policy Statement for the County.
The Cultural Plan has been undertaken at the same moment as two other significant planning
exercises by the County. The first is an Operational Review of the Community Services
Department which, along with Economic Development and the Planning Department has a
central role in cultural development in the County.
The second is the Vision 2009 process launched by Council in 2004 intended to develop an
overarching vision and strategy to guide development in the County over the next 5 years.
The timing of the three planning exercises presents a strong potential for coordination and
integration of visions and plans.
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1.3
Methodology
The study process unfolded in five phases, as illustrated below.
Figure 3: Cultural Planning Study Process.
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1.4
Cultural Planning Assumptions
Prince Edward County’s Cultural Plan is based on a set of perspectives and approaches that
differ from much past practice in Canadian municipalities. Beginning in the early 1990s in
countries such as Australia, the United Kingdom and the United States, a new model of local
cultural development known as ‘cultural planning’ began to
(Cultural planning takes) a ‘whole system’
gain momentum. Two leaders in the field define cultural
perspective…aimed at breaking down ‘silos
planning as “the strategic and integrated planning and use of
4
and strengthening partnerships…
cultural resources in community and urban development.”
Cultural planning emerged to combat what was seen as the poor fit between traditional cultural
policy assumptions (most inherited from senior levels of government) and local needs. Traditional
cultural policy tended to:
•
•
•
•
See cultural development through the lens of individual (‘silo’) disciplines or sub-sectors visual arts, performing arts, heritage, various cultural or media industries, etc.;
Understand 'culture' and cultural resources in largely "aesthetic" terms, related to specific
(and often quite traditional) forms of artistic expression;
Maintain a stark divide between "for-profit" and "not-for-profit" local cultural activity;
View local government's role largely as founder and owner/operator of cultural facilities.
Cultural planning broadens local government’s role to include that of catalyst, facilitator, and
partner. Here government’s goal is to help establish the overall conditions conducive to cultural
development and to build community capacity to advance cultural goals.
Cultural planning is a form of asset-based community development. It begins by mapping a
community’s cultural assets or resources as the basis for planning and action. Other
characteristics include:
•
•
•
A broad definition of culture and cultural resources – one that embraces traditional arts,
heritage and cultural industry activity, but extends this definition to include a wider range of a
community’s cultural assets, both tangible and intangible;
A “whole system” perspective - aimed at breaking down ‘silos’ and strengthening (horizontal)
partnerships and alliances across the cultural sector, and between the sector and other
community and local business interests; and
‘Place-based’ thinking – the point of departure for all planning is how local cultural resources
contribute to a community or a municipality’s unique sense of place and its strategic
advantage.
While cultural planning is well-established in some countries, it has only recently begun to gain a
foothold in Canada.
4
Grogan, David; Mercer, Colin; Engwicht, David. (1995). Cultural Planning Handbook. Allen & Unwin.
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2.0
A PORTRAIT OF PRINCE EDWARD COUNTY
The study began by creating a profile or ‘portrait’ of Prince Edward County as context for
planning. Sources included review of existing planning documents, interviews with municipal staff,
and a review of available statistical information on the County.
2.1
Statistical Portrait
Figure 4 highlights a few of the hundred or more variables collected every five years through the
Census by Statistics Canada. Profiled statistics are reported for the most recent census year
(2001) and the preceding census (1996).
The overall population of Prince Edward County was just under 25,000 in 2001, relatively
unchanged during the previous five years (during the same period overall provincial population
increased 6.1%). Projected population in 2005 according to Ontario Ministry of Finance figures is
26,500, demonstrating modest growth.
In 2001, one in five residents was 65 years of age or older, a 7.5% increase from 1996. The
number of youth (ages 10 to 19) remained virtually unchanged during the five year period. The
most significant shift in age structure was the increase in both number and proportion of “middle
aged” (45 to 64 years) which grew 13% in the five year period. Offsetting this was a decline in
young adults (aged 20 to 44) – this age cohort declined by 11% during the same period. In
summary, the population is “maturing”.
Although population did not grow from 1996 to 2001, the number of households increased by
3.6% - with a concomitant decrease in average household size (reflective of the continuation of a
long-term, pervasive trend experienced throughout North America). Approximately 70% of
households in Prince Edward County are “family” households, meaning household of more than
one person related by birth or marriage.
Several individuals interviewed during the study felt that
significant changes, including an influx of new residents and
businesses, had occurred in the 2-3 years, growth that was
potentially not captured in available data. As one indicator of
growth they cited that that 15 years ago the number of annual
building permits issued was 178. Today it is 1500.
… the combined labour force in
information/culture/ arts/entertainment and
accommodation and food now exceeds
that of forestry and agriculture.
Just under half of the residents of Prince Edward County are part of the employed labour force
(declining slightly from 49% in 1996 to 47.5% in 2001). Of this labour force, 3.1% are classified
as working in fields related to “information, and culture plus arts and entertainment”. A further
7.3% work in “accommodation and food”. And, of the total employed labour force, 9.0% work in
agriculture and forestry. The combined labour force in information/culture/arts/entertainment and
accommodation and food now exceeds that of forestry and agriculture. Moreover, the rate of
increase in these occupational categories in the County was significantly higher than the province
as a whole during this same period.
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In fact, the cultural labour force figures almost certainly under-represent actual numbers. The
cultural labour force is notoriously difficult to study as a good deal of work and activity does not
map neatly onto standard industrial classification categories of employment.
Approximately 16% of the population aged 20 years and over has a university degree and of
these, 13% have a degree in “fine art” and 16% have a degree in “agriculture,” both significantly
higher than province-wide figures. It is also significant
Average personal income increased 17% to $27,237 and average family income increased 16%
to $58,791, increases that were still significantly lower than provincial averages during the same
period. Averaged income figures may, however, be distorted by higher incomes of new residents
to the County. Firm data on income distribution was not available for this study. However, the
Cultural Plan Advisory Group felt this information would confirm this hypothesis. Lower than
average income does have implications for disposable income for some cultural activity.
Figure 4: Statistical Portrait of Prince Edward County
Statistical Portrait
Prince Edward County
Prince Edward County*
Topic
Demographic Variable
1996
1 Population
Total Population
Youth (10-19)
Young Adults (20-44)
Middle Aged (45-64)
Seniors (65+)
2 Households
Total number of private households by household type
Family
Non Family
Average Household Size
3 Migrants
Total population 1 year and over by mobility status 1 year ago
Migrants I year ago
Total population 5 years and over by mobility status 5 years ago
Migrants 5 years ago
2001
Ontario
% Change % Change
1996 - 2001 1996 - 2001
25,043
3,275
7,780
6,235
4,735
24,901
3,365
6,940
7,045
5,090
-0.6%
2.7%
-10.8%
13.0%
7.5%
6.1%
9.0%
0.9%
17.0%
10.3%
9,535
7,370
2,140
2.6
9,880
7,555
2,325
2.5
3.6%
2.5%
8.6%
-4.7%
7.5%
8.0%
6.2%
0.0%
24,150
1,905
23,055
5,095
24,145
1,295
23,345
4,165
0.0%
-32.0%
1.3%
-18.3%
6.3%
2.0%
7.1%
3.2%
12,275
45
105
150
195
50
935
60
11,825
135
135
215
205
25
940
40
-3.7%
200.0%
28.6%
43.3%
5.1%
-50.0%
0.5%
-33.3%
8.9%
11.3%
13.1%
0.8%
0.9%
22.5%
-4.5%
-20.9%
Total 1997 North American Industry Classification System (NAICS)
Agriculture, forestry, fishing and hunting
Information and cultural industries
Arts, entertainment and recreation
Accommodation and food services
12,255
1,165
n.a.
n.a.
840
11,820
1,065
130
235
865
-3.5%
-8.6%
n.a.
n.a.
3.0%
8.9%
-14.3%
n.a.
n.a.
8.3%
5 School Attendance
Total population 20 years and over
University
Total population with postsecondary qualifications by major field of study
Fine Arts
Agriculture
19,770
2,895
7,370
315
375
18,595
2,970
8,570
385
490
-5.9%
2.6%
16.3%
22.2%
30.7%
-1.7%
6.2%
16.6%
12.9%
13.9%
6 Income
Average Personal
Average Family
$23,349
$50,547
$27,237
$58,791
16.6%
16.3%
20.3%
23.4%
4 Employed Labour Force Total 2001 National Occupational Classification for Statistics (NOCS)
Art and culture
Technical in arts
Chefs and cooks
Food and beverage
Accomodation
Agriculture
Forestry
*Source: The Corporate Research Group Ltd., based on 1996 and 2001 Statistics Canada Census Data.
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2.2
Official Plan
The Prince Edward County Official Plan sets out an overall
vision and more specific commitments to guide
development activity across the County over the planning
period to 2021.5
Careful planning and decision-making will
ensure that the unique and special
characteristics of the County are not lost in
order to accommodate the growth pressure.
The following extracts from the Plan’s vision statement (Section 2) set the overall policy context
for development. This vision, through almost twenty years old, remains a powerful one. It also
parallels, to a remarkable degree, the vision of the County and its future that emerged from
consultation during the cultural planning process. A common theme is concern for managing
growth to ensure that development, while necessary, not be at the expense of those qualities that
make Prince Edward County a unique place to live, work and visit.
“.. a Special Place … one of the oldest areas of settlement in the Province ..
relatively unchanged due to isolation; building stock presents an architectural history
of Ontario; streetscapes illustrate aspects of nineteenth century urban life; tree-line
county roads; historic rural properties; boundaries defined by water; limestone
bluffs, sand dunes and beaches …much of the shoreline remains undeveloped.”
“The County we envisage … will continue to have the social and cultural values
that have evolved through time; a community spirit, a sense of belonging, a tradition
of self-reliance, social responsibility, sharing, neighbourliness and an appreciation of
culture and heritage.
Environmental Resources ... as a result of a desire to link economic growth with
environmental sustainability, the management and preservation of the County’s
natural resources will play a prominent role in the evolution of the community.
Growth Pressures … growth will occur due to a number of factors … careful
planning and decision making will ensure that the unique and special characteristics
of the County are not lost in order to accommodate the growth pressure.
Settlement Patterns … Picton will remain the “Hub” of Prince Edward County …
Wellington will provide opportunities for new residential development and tourism
facilities .. the Village of Bloomfield will include tourist-oriented commercial facilities.
Re-development activities will include the on-going restoration of historic building
stock and architecturally blending the “new” to reflect the “old.”
Economic Development ... it is Council’s intention to aggressively market the
County as a location for business in order to retain and attract young people to the
County … employment opportunities will be provided through a balance of
agriculture, tourism, service and light industry. The County will foster a climate for
innovative economic opportunities.
Agriculture …in the future there will continue to be a distinct rural component to the
County… New agricultural products will be developed…Farm activities will be
protected from incompatible encroaching development.
5
Adopted by Prince Edward County 25 November 1993 an Approved by the Minister of Municipal Affairs 23 December 1998 – Office
Consolidation incorporates Official Plan Amendments (OPA) 1 through 22. Three Secondary Plans form part of the OP, including
plans for: Picton-Hallowell Urban Area; Village of Wellington; and Hamlet of Rossmore.
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Tourism … there will be a strong tourist demand for the natural, historic and cultural
attractions of the County. The protection and enhancement of the area’s natural,
historical and cultural attractions and related circulation corridor will be the focus of
the County’s successful tourism strategy. There will be more professionalism in
marketing and promoting tourism... the market potential will expand, becoming more
year-round in nature and more specialized.
Social Needs … while the County will offer an attractive location for retirees and
elderly people … the County will be the home to many younger people including
children, teenagers and young adults. The mental and physical health of County’s
residents will depend upon regional programs and events that encourage physical
activity, social interaction and appreciation of the County’s culture and heritage.
Linkages … The County will provide an attractive environment to cyclists because
of its well-planned trails, facilities, attractions and suitable terrain. The beautification
of tourist roads, including the loyalist Parkway, will be undertaken.
2.3
Economic Development
Economic Contribution
Calculating the precise impact that culture and culture-related
Employment in the cultural sector has
activity has on the economy of Prince Edward County would
been growing faster than the average of
require a dedicated economic impact study. However, a few
all employment.
indicators can be drawn from existing data. It is known that for
the province-as-a-whole, culture contributes culture contributes 4% to the Ontario economy (as
measured by GDP) and accounts for 4% of employment, according to a recent publication by
Statistics Canada.6 The proportion of the economy generated by culture in the County may be
slightly less than these figures due to concentrations of activity in Toronto (home to some of the
largest sectoral contributors: media, broadcasting, music recording and film).
Of particular interest is the finding that the fastest growing segment of cultural activity is “festivals”
- an activity in which the County can be highly competitive.
Also significant is that in the overall Ontario economy, employment in the cultural sector has been
growing faster than the average of all employment, has a lower unemployment rate than average,
a higher proportion of full time jobs and a higher proportion of jobs created through selfemployment.
To become more specific about the economic contribution of culture to the County’s economic
base, and economic impact study will be required. There are two aspects to such a study. The
first is to develop an estimate of the impact of cultural activities on the dollars injected into the
local economy. To develop this estimate, surveys are required to identify the cultural “spend” by
both visitors and residents on cultural activities. Also required is information about the structure
of the economy so that the leverage of that spending can be calculated (i.e. determine the degree
to which the dollars spend on culture multiply within the local economy based on local
consumption of goods and services).
6
Statistics Canada, Vik Singh, Economic Contributions of the Culture Sector in Ontario, 2004.
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The second aspect is to determine the impact of a rich cultural life on the attraction of the
workforce, and from that, estimate the impact that these new jobs have on local spending,
investment and municipal tax receipts.
Strategic Economic Development Plan
The Plan developed for the County in 2004 by WCM Consulting Inc. concluded that traditional
development strategies based on attracting large scale industry would not succeed, but that the
County was well-positioned to take advantage of an alternative economic development models
focused on knowledge- based industries and creative content.
The Plan cites the work of American researcher Richard Florida
on creative cities and communities. Florida argues that quality of
place is now a key competitive advantage for cities in attracting
people, investment and new businesses. Florida measures
quality of place in a region in terms of three things7:
..the County’s long-term economic health
depends on knowledge- based industries
and creative content.
What’s there? – A combination of built and natural environments, which foster creativity.
Who’s there? – Diverse kinds of people, giving the signal that any creative person is welcome.
What’s going on? – The vibrancy of street life, arts, music, outdoor cafes, etc.
Florida’s findings represent a significant shift in our appreciation of the economic significance of
culture to local economies. Previously the focus of attention was on direct employment in the
sector combined with the economic ‘spin-offs’ resulting from spending on cultural activity – by
residents and visitors. These remain important indicators to assess. However, Florida’s argument
makes the deeper point that the very reason people choose to live, work and invest in a
community has a great deal to do with the quality of cultural life they find there.
The Plan described an economic cluster in Prince Edward County resting on four pillars, with
tourism and the creative economy, arts, culture and heritage having significant potential for
further development. The interdependence of the four pillars is illustrated in Figure 4 below.
Tourism Development
A tourism catchment area that includes Montreal, Ottawa, Toronto and several highly populated
northern American states, combined with unique natural and cultural landscapes, make Prince
Edward County a highly desirable destination. The County has embarked on the Premier-Ranked
Tourism Destination program of the Ontario Ministry of Tourism and Recreation. The program is
designed to help municipalities strengthen the ‘market readiness’ of tourism sector. A focus of the
program is on strengthening the information base of tourism assets and attractions as the basis
for embarking on a full tourism strategy.
To fully realize its tourism potential, the Economic Development Plan maintained that individual
players in tourism would need to come together around a proactive strategy. The following
recommendations were made:
7
WCM Consulting Inc. (September 2004). Market Readiness Assessment and Strategic Economic Development Plan. The County of
Prince Edward.
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Figure 5: Four Pillars of the Prince Edward County Economy8
•
•
•
•
•
•
•
“Create a unified image of ‘quality of place’.
Broadcast this message often and consistently and consider the use of a logo as a unifying
image.
Promote the County through the hosting of local conferences and participating in external
events in crafts, tourism history and architecture.
Work closely with learning institutions in these areas such as George Brown and Loyalist
College.
Develop signage on Highway 401 describing attractions in a tasteful manner.
Encourage chefs and other artists to settle in the area.
Establish partnerships with similar regions world-wide.”
Cultural Development
The Economic Development Plan argued that one reason for poor tourism performance in the
County, relative to other less advantaged regions in the province, was due to extremely limited
funds available for cultural tourism advertising and promotion. The Plan also maintained that
visitation to museums and heritage sites in the County were low relative to other parts of the
province, and that these sites required significant renovation and upgrading if they were to
succeed. While true for some heritage institutions, most arts events and festivals in the County
are tremendously successful attracting large crowds. Sandbanks Provincial Park also continues
to draw large numbers and is in fact operating at capacity for most of the summer months.
The study also noted that barriers to progress posed by weak linkages within the creative and
cultural sectors, and between these sectors and the
“Many (cultural) sites and institutions ...
business community. On a positive note it stated that “local
require significant renovation and upgrading.”
investors and taxpayers that profit from the presence of
these (cultural) assets have expressed a willingness to support the industry” if a strategy could be
developed to advance these goals.
8
Adapted from WCM Consulting (2004). A Strategic Economic Development Plan for Prince Edward County.
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2.4
Vision 2009
In June and September 2004 County Council conducted five public visioning sessions. More than
300 people participated in the five events. At each, people were asked to imagine themselves in
2009 and to identify those characteristics of the County of which they were most proud. Working
in small groups, they were then asked to agree on the ‘most important’ visions and report back to
the group as a whole.
Common themes emerged over the five sessions, a significant number of which related directly to
arts, heritage and cultural development in the County.
1. “Community is valued”
2. Agricultural industry important – especially family farms
3. Excellent health services – both preventative, and (responding to) need
4. Waterfront is accessible and cared for
5. We take care of our natural environment
6. Downtowns are thriving
7. Architectural and cultural heritage is preserved
8. Strong arts and cultural community
9. Economic development is congruent with our values
10. We have public transportation for seniors and others
11. Rural and village character is retained with improved roads, sidewalks, bicycle paths
and walking trails
12. Strong small business sector and clean industries are providing good year-round
jobs
13. Municipal governing process is open and inclusive
14. Living in the County is affordable and safe
15. The County has a post-secondary education centre
16. Tourists are valued and well-served
17. Seniors have affordable, well-serviced accommodation and a good range of
recreational opportunities
18. Alternative energy sources in use, including wind and solar power.
In the category of ‘most important visions’, the following are most germane to this study.
Heritage, Character and Culture are Preserved
• Architectural heritage is preserved
• Our streetscapes reflect our heritage
• Our main streets are revitalized and reflect our heritage
• An architecturally responsible and historically respectful and attractive community
• Wellington Town Hall has been restored
• Rural and village character is retained with improved roads, sidewalks, bicycle paths
and walking trails
• Avoid sprawl – maintain County as it is
“Local investors and taxpayers that profit
• All towns and villages are active – no ghost towns
from the presence of cultural assets
• Vibrant community that respects and encourages
have expressed a willingness to support
traditional values of the County
the industry”
• Preserved County lifestyle
• Preserved aesthetics of County with required updates of
infrastructure, as necessary
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•
•
•
•
•
Retained rural character and natural beauty
Key communities restored and revitalized with historical values intact
Picton downtown revived
Picton is a classic Loyalist town, yet has all services
We have kept the rural beauty and vitality of our County while encouraging new
ventures
(The) Arts Community is Strong
Strong marketing and promotional support is provided for the County’s artists and
artisans
• Artistic development is encouraged
• Regent Theatre is viable, with good community support
Jobs, Training and a Strong Economy
• Significant film and television production activity
• Good balance of agriculture, technology-based and arts-based industries
Managed Growth
• Historic architectural character preserved while encouraging compatible new
development
• Urban growth is controlled to ensure that our distinct small communities and their
town halls are maintained
2.5
Summary
Among the most significant factors shaping the context for the Cultural Plan are the following.
Challenges
•
•
•
A stable population, but one dependent upon immigration to the County to maintain the
population and tax base.
Declining traditional industries and evolving agriculture economy to sustain employment and
wealth creation.
Arts, heritage and cultural assets in need of increased investment.
Opportunities
•
•
•
Expanding employment in the combined cultural and tourism/accommodation industries.
Extraordinary cultural resources and natural environment as a magnet for attracting new
residents, businesses and investment.
Strong articulated support for arts, heritage and culture (although support that does not
necessarily translate into greater investment).
Overall, one theme prevailed in all consultations – the need to ensure that needed growth and
development in the County not undermine its character and
One speaker said the County faces the
quality of life.
risk of ‘rural gentrification.’
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One speaker at the public meeting spoke of the threat of ‘rural gentrification.’ Growth and
development are unquestionably needed if the County is to maintain essential public
infrastructure and sustain a high quality of life for residents. However, this growth must be
planned and managed carefully so as to avoid the same negative impacts that follow urban
gentrification: the displacement of local residents and businesses; prohibitively high living costs
and property values; overall undermining of local character and identity.
Concern was also expressed about the gap between the positive vision and good intentions
articulated in many planning documents (e.g., the Official Plan, Vision 2009) and the hard
decisions and priority-setting needed to realize these goals.
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3.0
MAPPING CULTURAL RESOURCES
3.1
Tangible Cultural Resources
The cultural mapping component of the Cultural Plan drew on existing lists and directories,
including a preliminary inventory of attractions developed for the Premier Ranked Tourism
Destination program of the Ontario Ministry of Tourism and Recreation.
The primary objective was to establish a coherent framework for collecting that could be agreedupon as the basis for future work. Broadening and deepening the information base on County
cultural resources is key to future progress and to implementing the results of the planning
process.
Two frameworks were developed to guide future research and data gathering.
•
•
Cultural Resources Framework - Appendix A
Cultural Labour Force Framework - Appendix B
The summary categories set-out in the Cultural Resources Framework are set out below.
Figure 6: Cultural Resources Framework Summary
Public Facilities
Cultural facilities – e.g., museums, archives, libraries, theatres
Organizations
Arts, heritage and cultural organizations
Cultural or entertainment businesses
Tourism agencies
Religious organizations
Community organizations
Educational institutions
Sites
Fixed or immoveable heritage
Heritage or cultural sites
Natural heritage sites
Moveable heritage
Collections – e.g., archives, artefacts, fine arts
Festivals and events
Cultural festivals and events – e.g., studio tours, music
festivals, built heritage tours
A preliminary map was created of cultural attractions and resources in the County based on
existing sources of information. Figure 7 illustrates the approximate location of these resources.
The number and location of these resources is more indicative than precisely accurate due to
limitations with existing data sources.9
9
The accuracy of the map is also compromised due to a reliance on postal codes for some resources which distorts actual location.
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Figure 7: Prince Edward County Cultural Map
The accuracy of this map is limited due to reliance on existing sources of information and a reliance on postal codes for some
resources that can distort actual location.
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3.2
Intangible Resources – County Character and Identity
Cultural mapping also encompassed County character and identity. This was done through a
community survey that sought input on the following questions.
1. When you think about Prince Edward County, what is the first symbol or image
that comes to mind?
2. What is it about the quality of life in the County that must be preserved for the
future?
3. ‘Stories’ are sometimes described as the ‘DNA of culture.’ Everyone community
has a few key stories (about people, places, events, achievements) that express
the collective memory of the place. What stories best express the County’s
identity?
4. If you could identify one action to preserve and enhance County identity, what
would that be?
The survey generated a rich and diverse body of responses. Results have been synthesized and
mapped against a thematic matrix in Figure 8 below. This summary is in a sense another ‘map’ of
the County – this time of some of its defining characteristics, values and habits of mind, and
collective memory.
This information can inform the development of an overall interpretive framework for the County
that ‘connects-up’ the stories told by various art and heritage organization, and through the
broader cultural resources of the County. An interpretive framework can serve the same purpose
as the mapping of themes and heritage resources set out in the
An interpretive framework can support
Loyalist Parkway Study, but for a wider set of themes and
economic goals by informing the
stories in County.
development of themed tourism
packages.
An interpretive framework can advance both cultural and
economic goals in the County. It can:
•
•
•
•
•
•
Inform the development of cultural programming at various sites and facilities that connect to
larger storylines in the County;
Help identify gaps in current programming;
Inform the development of web content on County cultural resources;
Provide a foundation for developing exhibition and interpretive materials;
Guide the development of themed tourism packages;
Inform the development of an overall brand and/or visual identity recommended by the
Strategic Economic Development Plan.
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Figure 8: Community Identity Themes
COMMUNITY IDENTITY
PLACE
Symbols
Island
Undeveloped shorelines
Water
Sand beaches
Open spaces
Tranquil countryside
Pastoral
Agrarian beauty
Wine country
Arts
Crafts
History
Victorian architecture
Rural relaxation
Entertainment and restaurants
X
X
X UNSPOILT
X
ENVIRONMENT,
X
BEAUTIFUL
X
XLANDSCAPES
X
X
PEOPLE
POTENTIAL
X
X
X
X
X
X
X
X
X
ECONOMIC
X
X
INNOVATION
X
X
X
Key Stories
Agriculture
Canneries
Barley
Black River Cheese Factory
Hijacking the Glenora ferry
Katie Grey and the American Cup
Minerva / Great Lakes
Historic shipping
Ship building
South Bay vortex
Air training base
Postwar Dutch settlement
Loyalists
Bootlegging / rum running
Independent Rouge characters
Temperance
Community generosity
Community participation
X
X
X
X
X
X
X
X
X
X
X
MARINE HERITAGE
AND X
TRADITIONS
X
X
X
X
X
X
X
X
INDEPENDENT
X
AND
X
GENEROUS
SPIRIT
X
X
X
X
X
X
X
Quality of Life
Rural character
Clean water
Unspoilt landscapes
Isolation
Common access to nature
Peace and quiet
Rural architecture
Main street architecture
Small town friendliness
Small town hospitality
Small town individuality
Simplicity
Unhurried pace
Human scale
Energy of the people
X
X
X
X
X
X
X
X
SMALL TOWN
CHARACTER
AND
LIFESTYLE
X
X
X
X
X
X
X
X
X
X
Actions
Maintain / develop niche agriculture
Limit development of rural area
Support agricultural awareness
Protect conservation areas
Preserve the coast line
Protect lakeshore views
Prevent commercialization
Prevent strip development
Stop monster homes
Regulate building heights
Protect / expand Picton Bay harbour
Develop slowly
Preserve Picton Main Street
Develop the Regent Theatre
Restore the Crystal Palace
Bylaws to maintain character of towns
Architectural and historic preservation
Promote the arts community
Preserve traditional values
Promote local shopping / small shops
Promote careful planning
Showcase the marine history
Enhance tourism in all areas
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X
X
X
X
X
PROTECT NATURAL
AND
CULTURAL LANDSCAPES
X
X
X
X
X
X
X
X
X
MANAGE GROWTH:
GROW SLOWLY
X
AND
AT SMALL SCALE
X
X
X
X
X
X
X
X
X
X
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4.0
WHAT THE COMMUNITY SAID – CONSULTATION FINDINGS
This section reports on actual input from the community through the various consultation vehicles.
4.1
Advisory Group
A study Advisory Group was struck with individuals from a cross-section of government,
community and business interests.
On December 16, 2004 the Advisory Group provided an initial scan of study issues using a
‘SWOC’ exercise:
•
•
•
•
What is the greatest strength or advantage the County enjoys in cultural terms?
What is the most significant weakness preventing the County from capitalizing on
this strength?
What is the most important opportunity the County has before it to develop its
cultural resources for broad community benefit?
What is the largest constraint blocking the realization of this opportunity?
Full results from this discussion are set out in Section A in the separate Technical Report. Major
themes are summarized below.
Strengths
Authenticity – characterized by a unique history and built heritage, distinctive cultural
landscapes, small time ambience, and its own ‘island culture with a slower pace (‘County time’).
Creativity – a haven for artists and craftspeople, extensive arts and cultural activity (festivals,
events), an emerging food and wine centre.
Natural beauty – large expanses of open land and natural and agricultural landscapes, extensive
and largely unspoiled coastlines.
Agricultural and maritime heritage – two defining facets of the County’s heritage and culture
are a continuously evolving agricultural economy (including the emergent wine industry) and its
maritime history (unique in Ontario).
Weaknesses
“Island culture” – while the County’s isolation has contributed to a distinctive heritage and
culture, some argued it has also bred a
resistance to change
While the County’s isolation has contributed to a
Assets taken for granted – the flipside of an
distinctive heritage and culture, some argue it has also
‘embarrassment of riches’ in heritage and cultural
bred a resistance to change.
resources is a certain complacency about these
assets, and a resistance to investing in them.
Economic challenges – resulting from declining industries (including agriculture), a shrinking
and aging population and an eroding tax base; pressure to generate new sources of employment
and wealth creation.
Development pressures – concern that development strategies aimed at responding to these
challenges could erode the County’s unique identity and quality of place.
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Opportunities
Role of the County – amalgamation brought people together presenting Council with an
opportunity to establish priorities and better connect a wide range of (formerly fragmented)
activity; the current Operational Review of Community Services is an opportunity in this regard.
Main Streets and Built heritage – largely intact main streets in all towns and villages, and a
sizeable stock of heritage buildings – houses, barns, public buildings – available for adaptive reuse (although many of these buildings fragile and at
The flipside of an ‘embarrassment of riches’ in
risk of being lost).
heritage and cultural resources is a certain
Partnerships and Collaboration – a strong desire for
complacency about these assets, and a resistance
closer collaboration: within the cultural community;
to investing in them.
between the cultural community and local business;
between different parts of the County.
Cultural and eco-tourism – based on the natural and cultural resources of the County, an
opportunity to better connect these two tourism markets.
Constraints
Weak marketing and promotion – a sense that due to a shortage of both money and expertise
the County’s many assets and attractions were not being promoted and made known both inside
and outside the County; no central directory or database of activity.
Lack of coordination mechanisms – the desire for improved collaboration is undermined by
there being no structure or mechanism to support partnerships and ongoing coordination;
government funding from many sources is available if dedicated staff time was available to
pursue; no ‘one-window’ access to information.
Short season – the relative shortness of the tourism season and the need to extend the shoulder
seasons.
4.2
Survey Results
Surveys distributed to more than 300 individuals and organizations across the County. The
following questions were asked.
1.
2.
3.
4.
5.
6.
What is already working well in terms of culture’s contribution to economic
development in the County?
How could these strengths be built upon?
What is not working well or could be made to work better?
Are there partnerships not currently in place that should be?
How would you rank the following barriers to progress?
• Skills and knowledge gaps or shortages
• Difficulty in sustaining momentum
• Inadequate marketing and promotion
• Weak networks or partnerships with other organizations
• None of the above (please specify).
Are there any other comments or suggestions you would like to make?
Results of these surveys gave shape to and informed more focused investigation through
interviews. One caveat should be noted. Surveys did not reach youth in the County is sufficient
numbers as should have been the case. The Youth Liaison Committee of the Library provided
some valuable input, but greater investment of time would have yield useful results. Looking more
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carefully at youth perceptions of culture and cultural opportunities should be an objective in
follow-up to the study.
4.3
Interviews
Interviews were conducted with approximately 35 individuals representing a cross-section of
community interests. Once again, input from youth was not as large as might have been the case.
The results of the SWOC exercise with the Advisory Group and surveys provided guidance for a
series of more focused questions used for interviews.
Findings synthesised from interviews are captured (without attribution) in Sector B of the
Technical Report. The results helped define a set of strategic themes examined in more depth at
the Public Meeting (below) and also informed the mapping of the Cultural Governance System for
the County and preliminary Strategies and Actions set out in the next section of this report.
4.4
Public Meeting
A Public Meeting was held February 7, 2005 and was attended by more than 60 people. A report
on the meeting is provided as Sector C of the Technical Report. Small working groups examined
five strategic themes emerging from previous research and consultation.
A. Managing growth – how do we combat ‘rural gentrification’ and protect our quality of place?
B. Places and Spaces – how do we better connect cultural activity across the County and
ensure available venues for cultural activity?
C. Cultural and Eco-Tourism – how do we plan and develop environmentally and culturally
sustainable tourism strategies?
D. Capacity Building and Sustainability – how do we build community capacity and ensure
the sustainability of cultural activity?
E. Marketing and Audience Development – how do we expand audiences and broaden
participation in cultural activity – for residents and visitors?
After exploring issues in each theme, working groups were asked to identify priorities and needed
actions.
A. Managing Growth
• The fragility of civic buildings – with the cost of maintaining a large asset base to
consider, adaptive re-use offers promising potential.
• Protection of rural landscape – tied to certain forms of development (ribbon). This
is a complex issue requiring a balance of
‘The Who is Us! - we’re all responsible for
interests (encourage newcomers to locate,
sustaining our arts/culture/heritage resources –
protect the landscape, provide investment
and our living space.’
return (through severance) to long standing
rural residents).
• Protection of remaining shoreline – the physical condition of the shoreline
probably protected through the Conservation Authority. The critical issue is to
preserve access to the shoreline (now nearly lost) and to preserve visual
sightlines to the water.
• Street Smart Initiative - Although there is more work to be done in a number of
areas, the Street Smart Initiative is making progress on urban design guidelines,
signage, streetscape design, renewal of main streets and revitalization. The
priorities listed above are areas that need focused attention.
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B. Places and Spaces
• Visual/performing arts – need for a central office and professional coordinator to
act as a clearinghouse for space, services. There is no shortage of spaces, but
need to match size, availability etc. with needs. Costs could be covered in part
through a percentage of fees charged for facilities.
• Percentage of budget for public art – establish policy of percentage of capital
construction costs for public art - from PEC artists.
• Ongoing communication with County community - regarding why cultural
places/spaces are important – for quality of life, as economic drivers, tourist
attractants etc.
• Festivals – make better use of existing facilities/spaces.
• Need for a public square – a prominent civic/public space.
C. Cultural and Eco-Tourism
•
•
•
•
•
•
•
•
•
Lack of coordination for assets – plus, access to assets must be more customer
focused (currently, most keep Mon-Fri hours). More systems. Inventory needed
(who’s open) available to B&B’s.
Increase shoulder seasons - importance of marketing; (there are things
happening all year round, but information not reaching appropriate audiences.
More partnering.
Ongoing communication with County
Skills development - marketing skills need to be
residents is needed about the importance
developed - for businesses, volunteer
of culture to economic development,
organizations, and government.
quality of life, etc.
Natural resources – must be nurtured and
managed carefully. More education and involvement/support of landowners.
Inventor/list – of arts, culture, heritage assets; better signage.
No Cultural Development Agency – don’t need another structure now. Bring
existing agencies together and share. Develop common/shared values/goals.
Municipal role - make space that it has available at affordable prices.
Skills improvement - grant writing.
The Who is Us! - we are all responsible/involved in the sustainability of our
arts/culture/heritage resources – and our living space.
D. Capacity Building and Sustainability
•
•
•
•
Volunteer Development – there is tremendous strength of volunteerism in the
County, but risk of burnout and not using people’s time and talents to full
advantage. Volunteer management a specific skill that must be developed.
Management versus governance - must distinguish between management and
governance functions in organizations; also distinguish between ‘service’
volunteers and board (governance) volunteers. Effective boards and governance
a priority. Tied to improved fundraising.
Partnerships - they already exist but we need to enable and support them – make
them easier. Shared administrative space can help, information (including grant
opportunities). Also need unifying entity or body to keep dialogue going. Monthly
meetings can start immediately!
Municipal leadership and support essential - need $$ but can help in other ways –
leveraging funds from other sources, providing space, administrative support, etc.
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•
Community Foundation - the lack of a community foundation is a big barrier for
the County. It could be a central body for both raising and dispersing funds. A
‘community United Way.’
E. Marketing and Audience Development
•
•
•
•
•
Tourists/visitors - must be encouraged to visit many things through:
• Awareness of what’s going on/what’s there before they visit
(marketing/advertising; internet);
• Assistance when they are visiting (cultural map; tourist packages; on-ground
signage.
• Mechanism: one-stop shopping in PEC for information (information re. events,
things to visit, accommodation). This could also be a Cultural Association that
is staffed professionally, and also helps access grants.
Audience development – not just one audience, but many (off-island, on-island,
long-standing PEC families, newcomers, young, older, old, varied
interests/requirements) must
There is not just one audience, but many – off
include/involve/satisfy all these.
island/on-island, long-standing County families,
Must have, as a priority, focus on Council and
newcomers, young, older…we must find ways to
Councillors to get their buy-in of the role of
reach all of them
cultural resources (not just nice-to-have, but a
driver of the community and the economy).
Students/youth – heritage/history of PEC must be better integrated into school
curricula; museums can help with this. If youth are “sold’ on the island, they are
more likely to stay/return, and use their own ingenuity to create jobs etc.
Annual cultural event – need an annual event that can mobilize energy/resources.
The Town of Buckhorn manages to attract huge numbers to their Arts and Craft
shows.
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5.0
CULTURAL PLANNING FRAMEWORK
5.1
Vision
The vision is intended to establish a shared set of assumptions and vocabulary to guide future
collaboration and action. It consists of two things.
•
•
A Cultural Planning Framework
Definitions and Assumptions
Cultural Planning Framework
Figure 9 illustrates the overriding conceptual framework guiding cultural planning in the County,
demonstrating connections between cultural levers, cultural resources, cultural participation and
cultural outcomes or community benefits.
Figure 9: Cultural Planning Framework
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Definitions and Assumptions
i. Culture and Cultural Resources
‘Culture’ is a notoriously difficult and slippery concept to define. In the widest sense, culture is
understood as ‘the unique ways of life that characterizes a community or social group.’ While this
understanding formed the overriding context, the focus in the Cultural Plan was on the more
pragmatic and manageable notion of cultural resources.
Cultural resources are all those elements – both tangible and intangible – that combined to define
the unique identity of the County. A more detailed description and typology of culture resources is
set-out in the Cultural Resource Framework (Appendix A) but includes: its built environment and
cultural landscapes; heritage sites; cultural facilities, organizations and businesses; heritage
collections; programs and activity; and the overall character of the community.
The focus on cultural resources is necessary to define a manageable sphere of activity for the
Culture Plan. Yet the larger vision of culture must continue to form the backdrop for planning and
action. In the quote, culture is seen as inseparable from the identity of a community. Both culture
and identity must be understood in dynamic terms.
Cultural identity cannot be reduced to a static heritage or accumulation of (past)
knowledge … rather is shows itself to be the dynamic force that enables a society
to transform itself without losing its original configuration, to welcome change
without being alienated by it …(identity) emerges out of a continuing exchange
between tradition and innovation.10
This link between history/memory/tradition and imagination/creativity/innovation is important on a
more pragmatic level. Too often in cultural policy and planning sharp distinctions are drawn
between ‘the arts’ (associated with creativity and the future) and ‘heritage’ (associated with
tradition and the past). As the UNESCO quote argues, the two are in fact inseparable elements of
culture and identity.
Figure 10: Culture – Memory and Imagination
10
UNESCO (1995). Our Creative Diversity. Paris: UNESCO Publishing.
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ii. Cultural Processes
While the close connection between the arts and heritage must be acknowledged, there are
differences in the cultural processes that underlie them. Across virtually all forms of artistic and
cultural expression or activity, four steps or functions can be identified.
Figure 11: Arts and Cultural Activity Process
Heritage conservation, by contrast, is usually understood to depend on the following steps or
functions.
Figure 12: Heritage Conservation Process
The point of making these steps or functions explicit is to illustrate the success in cultural
planning and development requires attention and support be directed to all steps, even those that
may have less immediate or direct public impact or visibility.
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5.2
Cultural Governance – Building Community Capacity
County Role
The Operational Review of the Community Services Department currently underway will help
define an overall mandate and responsibilities or commitments for that Department. It is likely that
Community Services will be the ‘lead’ department for cultural development in the County, in
accordance with practice in most municipalities in Ontario.
However, the scope and significance of culture and cultural resources to the County’s economic
and social future means that no single department can assume complete responsibility for all
issues. Cultural planning and development must be approached with a ‘whole of government’
approach requiring collaboration and shared responsibility across many departments.
There are, however, some obvious ways in which to delineate responsibilities in different aspects
of ongoing cultural planning and development in the County.
Figure 12 below maps the different cultural processes
outlined above against likely ‘lead’ areas of responsibility
across three departments: Community Services, Economic
Development, and Planning.
Municipalities in Ontario have traditionally
been more involved in direct program or
service delivery in culture, leaving little time or
resources for policy and planning – too much
time rowing (or doing) and not enough steering
(guiding and collaborative direction setting).
A final general observation to make about the County’s role
in the overall Cultural Governance System relates to the balancing of Policy and Planning
functions on the one hand, and program (or service) delivery and facility management on the
other. The tradition in municipalities in Ontario has been to be more involved in direct service
delivery in culture, leaving little time or resources for policy and planning – too much time rowing
(or doing) and not enough steering (guiding and collaborative direction setting). In defining the
County’s role in culture, an appropriate balance of the two functions should be maintained.
Achieving long-term success in cultural development in the County requires the ongoing
engagement of the following Partners making use of the following Cultural Levers.
Partners
y
y
y
y
y
Elected officials
Municipal staff – from all relevant departments - Economic Development, Community
Services, Planning
Local cultural leaders – from across the arts, heritage, libraries, and commercial cultural
activity
Business leaders – individual business owners, Chambers of Commerce, BIA’s, etc.
Education sector representatives – primary, secondary, post-secondary
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Figure 13: County Departments and Lead Responsibilities in Cultural Development
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Cultural Levers
•
•
•
Planning and Policy
Investment and Resource Development
Capacity Building
• Partnerships and Collaboration
• Leadership Development
• Research and Information
• Marking and Audience Development
Potential actions across these system needs identified
through consultations are captured in the Figure 12.
These are not presented in priority order.
… successful communities are those that build
the capacity to support ongoing collective learning
and interaction.
While the many action described in the chart are important, an equally important part of the
purpose of the cultural governance system is to support shared learning. The work of Meric
Gertler and David Wolfe of the University of Toronto11 demonstrates that innovative and
successful cities and communities are those that build the capacity to support ongoing collective
learning and interaction. Their research demonstrates that while leadership from specific
individuals in the community is important, this must be supported by structures and commitments
to sustain dialogue and interaction across clusters of interests.
The mechanisms and tools or entities for supporting the ongoing collection and dissemination of
information help build social capital – also a key ingredient in cluster development and economic
competitiveness. The constraints or limits to clusters are largely a function of the lack of
‘connectors’ or deficits in social capital. Existing civic and professional organizations are key to
this function.
11
Meric Gertler and David Wolfe (2002). Local Social Knowledge Management: Community Actors, Institutions and Multi-level
Governance in Regional Foresight Exercises. Prepared for the European Commission.
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Governance Function
Planning and Policy
Issues
Sectoral Planning
and Priority
Setting
Integration with
County Planning
Investment and
Resource
Development
Capital
Investments
The Corporate Research Group
Culture Division
Identified Actions
y
Culture Steering Group - Convert the cultural plan Advisory Group to a Culture Steering
Group to oversee initial implementation of the plan. Consider additional members to ensure
full community and business representation.
y Cultural Summit - Organize the first of ongoing annual Summits to support County-wide
dialogue and collaborative priority setting. Each Summit will:
y Assess progress on implementing actions over the past year (consider producing an
annual ‘report card’ benchmarking progress);
y Scan environment and set priorities for next year;
y First Summit to consider permanent mechanism or body to sustain year-round
planning.
y First Summit to establish measures and benchmarks to assess progress.
y Cultural Forums - Monthly (or bi-monthly) issue-based forums tied to the annual Summit
to support ongoing dialogue/engagement/synergy.
y Forums could include a workshop and professional development component (see
Leadership Development below)
• County to provide administrative support to Steering Committee.
• Summit and Forums to be jointly funded by County and its partners (including business
community)
y Ensure integration of cultural considerations in all planning and decision-making across
County departments - Economic Development, Community Services, Planning, Public
Works.
y Investigate the establishment of a Heritage Property Tax Incentive program as legislated
under the Ontario Municipal Act
y Integrate cultural facility and infrastructure needs into 10-year capital budget projections for
County. Potential opportunities include:
y Upgrading of space in County owned buildings for cultural use – e.g., exhibitions,
performances, meetings
y Integration of cultural component in new constructions (e.g., new County
administrative building; integration of gallery space in new library building)
y Implement a ‘1% policy’ – allocating 1% of all capital budgets for all public buildings
for art (for interiors or exteriors – sculpture, etc.
y Adaptive re-use of space in Shire Hall once new administrative building completed.
y Extension of Regent Theatre into County Cultural Centre (below)
y Redevelopment of Picton Post Office and/or Armouries as cultural attractions
y Plan (long-term) for Curatorial Centre as shared collections storage and conservation
facility for heritage institutions – museums, archives, libraries, historical societies (see
consolidated museum services role below)
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Organizational
Investments
Project Funding
Capacity Building
Partnerships and
Collaboration
y
Seek additional operating support for County Museums tied to them assuming a
consolidated heritage conservation mandate in the County. Responsibilities could include:
y Staff support for Municipal Heritage Committee
y Assistance and support for collections management for County custodial institutions
(museums, archives, libraries)
y Serving as regional ‘nodes’ in overall interpretive framework for the County
y Coordinate liaison with schools
y Seek operating support for the Prince Edward County Arts Council (PECAC) to play similar
service provider role for arts activity. Support services could include:
y Providing core administrative support to existing arts festivals and events
• Coordinate liaison with schools
• Others to be defined through consultation with the arts community
y Become pilot community site for Artsvest, a new program of the Council for Business and
the Arts in Canada providing matching funds for business contributions to local culture.
y Short-term - establish County Culture Fund to provide (small) seed funding for local
initiatives.
y Long-term – establish a Prince Edward County Community Foundation to pool resources
for community development projects/activity. Community Foundations of Canada provides
start-up support and assistance for new community foundations.
Within the cultural sector:
y Work toward extending use of the Regent Theatre as a Cultural Centre for Prince Edward
County to provide:
y Shared administrative space and consolidated administrative services for key culture
and tourism partners
y ‘One-window’ source of information on culture and tourism activity and opportunities in
the County
y Mechanism to strengthen collaboration between the Regent Theatre and festivals and
events (Jazz Festival, Author’s Festival, Studio Tour, etc.)
y Explore potential for collaboration and shared services with cultural groups in neighbouring
municipalities – Quinte West, Belleville, etc.
Between the cultural sector and the business sector:
Ensure effective collaboration between all economic development agencies - Economic
Development Department, Chamber of Commerce, Business Improvement Areas
y Ensure strong cultural representation on BIA’s
y Build on example set by Taste the County in culture-business sector partnerships
y Continue inventorying of County cultural resources to establish a comprehensive mapping
of resources and attractions.
y
Research and
Information
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y
y
y
Leadership
Development
y
y
y
y
Marketing and
Audience
Development
y
y
y
The Corporate Research Group
Culture Division
Undertake inventory of existing programs and activities as basis for:
y Identifying gaps in programming
y Marketing and promotion
y Pay particular attention to ‘underground’ activity often missed through formal channels
Investigate consolidated cultural portal for all cultural programs and activities based on
models in place in other communities (e.g., Waterloo Region). Portal to support:
y Self-posting of information by cultural and business groups
y Web-based tools - e.g., media releases, distribution lists, etc.
Consolidated booking system for cultural and tourism/accommodation packages (using
model of system in place in Orillia)
Organize workshop series addressing learning needs across the sector, such as:
y Non-profit management and governance
y Managing volunteers
y Marketing and promotion
y Fundraising and development
Make use of extensive web-based learning resources in conjunction with workshops
Establish a coaching and mentoring program linking senior professionals (in culture, in
business) with individuals/groups requesting support and assistance
Recognize the size and monetary worth of the contribution of volunteers to cultural
development in the County
Strengthen marketing of County cultural resources to residents and visitors
y Developing an overall interpretive framework to inform marketing and audience devel.
y Improve coverage (‘what’s on’) by local newspapers and radio fed by reliable source
of information on upcoming event (see portal above).
y Develop coordinated marketing campaigns using consolidated mailing lists from
cultural and tourism attractions.
y Support the export of Prince Edward County culture – marketing not only about
attracting visitors to the County.
Establish ongoing communications campaign aimed at County residents on the importance
of culture - to the economy, to the community.
Expand audiences for cultural activity by:
y Strengthening knowledge of existing audiences and audience interests –
acknowledge varying interests and needs (by age, occupation, education, etc.)
y Strengthen knowledge on non-attenders - understand reasons
y Pay particular attention to youth, many of whom are disengaged from existing
offerings and activity.
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5.3
Identified Strategies and Actions
Three broad strategic themes emerged from the consultations as both requiring attention and
presenting opportunities.
1. Managing Growth – taking steps to ensure needed growth and development does not
undermine quality of place. Includes:
•
•
Managing growth and development in Picton
Managing growth and development across
the County
Take an integrated vision of cultural places in the
County based on a ‘hub’ (Picton) and ‘spokes’ (many
other places and attractions across the County
image)
2. Cultural Places and Spaces – extending and improving the places where culture happens in
the County. Includes:
•
•
Promote an integrated vision of cultural places in the County (‘Hub and Spokes’)
Spaces and facilities – improve and extend access to cultural venues across the County
3. Cultural Tourism – build on existing strengths and overcome barriers to collaboration
•
•
•
•
Extend the season – build shoulder seasons through programming
Strengthen tourism packaging - based on an interpretive framework for the County
Exploit strong links (cluster) of cultural, eco-, and culinary tourism
Strengthen marketing and promotion - through collaboration and shared investment
Potential actions identified during the consultation and planning process are captured in the
following pages.
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Strategic Theme
1. Managing Growth
Issues
Managing growth and
development in Picton
Managing growth and
development across County
Identified Actions
•
•
•
•
•
•
•
•
•
•
2. Cultural Places
and Spaces
Promote an integrated
vision of cultural places in
the County
Picton (Hub)
Towns and villages (Spokes)
•
•
Develop a Cultural District in Picton
• Anchored by four cultural facilities - Regent Theatre, Library, Armouries,
Post Office
• Pedestrian friendly street design connecting the four facilities
• Make better use of Armouries – possible County Country Market
• Extend business hours, especially during peak season
• Animate downtown with street theatre, buskers, visual arts, etc.
•
Reinforce and support unique identity of towns and villages but linked by
some common urban design features
Make better use of County museums as ‘nodes’ of cultural activity
Develop old railway line for bicycling, hiking, cross-country skiing
Establish Doors Open event
Increase art in public spaces
•
•
•
•
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Culture Division
Build on work underway through the Street Smart Initiative
Ensure a strong overall vision and seek specialized professional expertise
Insist on complementary new buildings to replace those lost to fire
(Long-term) need for by-pass to divert traffic from downtown
Harbour - better docking for boats, improved boardwalk
Incorporate a prominent public square in downtown revitalization plans
Shorelines - restrict residential development blocking views and access to
waterfront; control set-backs to ensure public access
Commission comprehensive heritage inventory – built heritage, cultural
landscapes, traditions and customs, archaeology, shipwrecks, etc.
Address the fragility and potential loss of public buildings – schools,
churches, town halls, as well as hub commercial buildings such as general
stores
Protect rural landscapes through careful approach to planning that balance
interests (needs of newcomers, investment return through severances fore
long-time residents)
Develop and make use of an interpretive framework to connect cultural
resources and stories across the County.
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3. Cultural Tourism
Spaces and facilities
•
Extend the season
•
•
•
Strengthen tourism
packaging
•
•
Exploit connections
between cultural, eco-and
culinary tourism
•
•
Strengthen marketing and
promotion
•
•
•
•
•
•
The Corporate Research Group
Culture Division
Provide access to space in County buildings and other public buildings
(schools, libraries, churches) at subsidized/reduced rates for performances,
exhibitions, meetings, live-work space
Develop and revitalize the Heights as arts centre, live-work and studio space
Develop a year-round ‘festival’ celebrating themes in County heritage and
culture - broaden stories beyond Loyalists – Aboriginal heritage, Dutch
settlement, other important stories
Develop activities ‘natural’ to shoulder season – maple syrup in spring, chilli
tasting in winter, etc.
Develop historical walks and tours – these were a success when offered in
Picton; expand and extend elsewhere in the County
Develop packages that connect theatre and performing arts offerings to local
history tours and activity, visits to museums, etc. – and links to food and
wine (Taste the County)
Closer collaboration with Sandbank Provincial Park
Push further on already established collaboration between arts community
and wine industry
Address limits placed on tourism (especially bus tours and larger groups) by
shortage of accommodation and larger hotel complexes
Develop integrated visual identity and ‘brand’ – reflected in road signs, print
material, etc. – reflecting County identity (see results of community identity
and character survey)
Strengthen market research to support both cultural and tourism objectives
Pool cultural and business resources for more effective and sophisticated
campaigns
Build on Premier Ranked Tourism Destination
Establish central booking service for theatre tickets, accommodation,
restaurant reservations, etc.
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6.0
DIRECTIONS FOR A COUNTY CULTURAL POLICY STATEMENT
While this Cultural Plan provides an overall planning framework and set of assumptions to guide
the County and its partners, it is recommended that a specific Cultural Policy Statement be
developed for approval by Council.
The Cultural Policy Statement should set out the municipality’s vision and commitment to culture
and cultural development in the County.
Components of such a Statement should include the following components.
Vision – a short statement summarizing the County’s understanding of the role of culture
in achieving stated long-term plans and visions for
The Cultural Policy Statement should set out
the community.
the municipality’s vision and commitment to
culture and the County.
Mission and Mandate – a statement of the
County’s overall commitments and the more
specific roles it will play in advancing cultural life and development.
Statements of mandate generally revolve around many of the levers or functions set out in
the Cultural Governance system (above).
Values – a set of high-level principles that provide guidance and direction in the
interpretation of the County’s commitments and responsibilities in culture.
Long-Term Goals – these statements should be at a fairly high level and have application
and relevance over many years.
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Prince Edward County Strategic Cultural Plan - Draft Report
LIST OF FIGURES
Figure 1: Cultural Planning Framework
Figure 2: Sustainable Prosperity
Figure 3: Cultural Planning Study Process
Figure 4: Prince Edward County Statistical Portrait
Figure 5: Four Pillars of Prince Edward County’s Economy
Figure 6: Cultural Resources Framework Summary
Figure 7: Cultural Map of Prince Edward County
Figure 8: Community Identity Themes
Figure 9: Cultural Planning Framework
Figure 10: Culture – Memory and Imagination
Figure 11: Cultural Planning Processes: Arts and Cultural Activity
Figure 12: Cultural Planning Processes: Heritage Conservation
Figure 13: County Departments and Lead Responsibilities in Cultural Development
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APPENDIX A: CULTURAL RESOURCE FRAMEWORK
Category
Public Facilities
Cultural facilities
Type
y
y
y
y
y
y
Archives
Community centres
Fairgrounds
Libraries
Museums
Theatres or performing arts venues
Arts, heritage and cultural organizations
y
y
y
Genealogical societies
Historical societies
Multicultural organizations
Cultural or entertainment businesses
y
y
y
y
y
y
y
y
y
y
y
Antique stores or markets
Arts supply stores
Bars or restaurants with live music
Bookstores
Craft stores/studios
Dinner theatres
Galleries
Local media (radio and TV)
Local newspapers
Performing arts schools/studios
Wineries or breweries
Tourism agencies
Religious organizations
Community organizations
y
y
y
y
y
y
Destination Marketing organizations
Churches, synagogues, mosques
Business Improvement Areas
Chambers of Commerce
Multicultural organizations
Rotary
Organizations
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Educational institutions
y
y
y
Post-secondary institutions (community colleges and universities)
Primary schools
Secondary schools
y
y
y
y
y
y
y
y
y
y
y
y
y
y
y
y
Buildings
Cultural landscapes
Heritage districts
Historic corridors
Aboriginal heritage site
Archaeological site
Historic corridors
Living history site
Bird or wildlife sanctuaries
Conservation authorities
Cross-country skiing trails
Provincial or national parks
Public parks
Scenic lookouts
Walking trails
Waterfalls
y
y
y
y
y
Archival collections
Crafts
Fine arts
Historical artefacts
Library collections
y
y
y
y
y
Aboriginal events
Built heritage tours
Country fairs
Craft festivals
Gallery tours
Sites
Fixed or immoveable heritage
Heritage or cultural sites
Natural heritage sites
Moveable heritage
Collections
Festivals and events
Cultural festivals and events (recurring)
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y
y
y
y
y
y
y
y
y
y
The Corporate Research Group
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Garden tours
Literary festivals
Museum or art gallery programs
Music festivals/events
Performing arts festivals
Street festivals
Studio tours
Walking tours – cultural heritage
Walking tours – natural heritage or agriculture
Winery tours
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APPENDIX B: CULTURAL LABOUR FORCE FRAMEWORK
Cultural Occupations
a) Creative and Artistic Production Occupations
y
y
y
y
y
y
y
y
y
y
y
y
y
y
y
y
y
y
Architects
Landscape architects
Writers
Editors
Journalists
Theatre producers and directors
Choreographers
Conductors, composers and arrangers
Musicians and singers
Dancers
Actors
Painters, sculptors, and other visual artists
Photographers
Other performers
Graphic designers and illustration artists
Interior designers
Theatre, fashion, exhibit and other creative designers
Artisans and craft persons
b) Heritage Collections and Preservation Occupations
y
y
y
Librarians
Conservators and curators
Archivists
2. Cultural Support Occupations
a) Cultural Management
y
y
y
Library, archive, museum and art gallery managers
Managers in publishing, motion pictures, broadcasting and performing arts
Supervisors, library, correspondence and related information clerks
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b) Technical and Operational Occupations
y
y
y
y
y
y
y
y
y
y
Library clerks
Landscape and horticultural technicians and specialists
Library and archival technicians and assistants
Technical occupations related to museums and galleries
Film and video camera operators
Graphic arts technicians
Broadcast technicians
Audio and video recording technicians
Announcers and other broadcasters
Patternmakers, textile leather and fur products
c) Manufacturing Occupations
y
y
y
y
Supervisors, printing and related occupations
Printing press operators
Printing machine operators
Photographic and film processors
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