Economic Development, Culture & Tourism

November 4, 1998

To:Strategic Policies and Priorities Committee

From:Joe Halstead, Commissioner, Economic Development, Culture & Tourism

Subject:The 2008 Toronto Olympic Bid - November Update Report

Purpose:

To update Council on Toronto's bid to host the 2008 Olympics and to respond to the various Council motions of March and July, 1998 and the Community Council motions from the special meetings held in September and October.

Financial Implications:

None arising from this report.

Recommendations:

It is recommended that Council:

1. request the Strategic Transportation Planning Group to work in co-operation with TO-Bid to provide strategic direction and guidance on transportation issues related to the bid for the 2008 Olympic Games; and

2. request TO-Bid to involve the Strategic Transportation Planning Group in the preparation of the transportation component of the bid for the 2008 Olympic Games;

3. direct the Commissioner of Economic Development, Culture and Tourism, jointly with the Commissioner of Community and Neighbourhood Services, to establish a staff working group to:

i) prepare strategies to address issues of homelessness, tenant protection, neighbourhood plans and new affordable housing opportunities as a component of Toronto's Olympic bid; and

ii) report to Strategic Policies and Priorities Committee as part of the update reports from the Commissioner of Economic Development, Culture and Tourism on the Olympic bid:

4. request that TO-Bid continue to work with social planning agencies and that TO-Bid conduct a social equity impact and action plan, as outlined in this report;

5. direct the Commissioner of Economic Development, Culture and Tourism to provide regular updates on the progress of the social equity impact and action plan;

6. adopt the terms of reference for the Olympic Task Force and request the Striking Committee select the members of the Committee.

Comments:

This report is one in a series of regular reports to Council on Toronto's bid to host the 2008 Olympics. Appendix 1 provides an update on the first phase of the public consultation process and a summary of the motions from the special Community Council meetings held in September and October and responses to the motions. Appendix 2 outlines responses to date to Council motions of March and July, 1998. This report consolidates a number of motions from Council directed to Strategic Policies and Priorities Committee, Urban Environment and Development Committee and Economic Development Committee regarding the Olympics.

Contact Name:

Joe Halstead, Commissioner

Economic Development, Culture & Tourism

Telephone: (416) 395-6188

Fax: (416) 395-0388

________________________________

Joe Halstead

Commissioner

Appendix 1

Public Consultation Update

Staff were asked to initiate a public consultation process as a result of motions passed at the March 4, 5 and 6, 1998 City Council, in its approval in principle of the City of Toronto bid to host the 2008 Olympic Games.

In August brochures were sent to 3000 ratepayer, cultural, sporting, advocacy, and special interest organizations in the City encouraging individuals and organizations to become involved with the Olympic bid. The brochure included the details on the Special Community Council meetings on the Olympic bid and encouraged people to attend and express their views.

In September special Community Council meetings were held in East York, York, Etobicoke, and Scarborough. Similar meetings were held in North York and Toronto in October. In total more than 500 people attended these meetings and 112 deputations were heard. In general the deputations focused on the following issues:

• financing the Olympics and the possibilities of a debt to the City taxpayers
• the need for improved transportation services
• the benefits the Games would bring for business and employment
• the benefits of the Games for improving the City's sporting and recreational facilities
• the need to make the City and the Games accessible for the disabled
• the need to celebrate all aspects of the City through a cultural program
• concern about the inconvenience of the Games for residents and businesses in the City
• concern about the IOC bid process
• concern that disadvantaged groups would see little or no benefit.

The motions from the Community Council meetings and the responses to the motions are summarized in this report.

The next step in the consultation is a set of six focus groups in November on the key areas interest - social equity, venues, environment, transportation, culture and finance. More than 500 invitations have been sent out to organizations with specific experience and expertise in these areas of interest. The focus groups are assisted by resource people and facilitators from across City departments and districts. TO-Bid staff and resource people are also participating. The purpose of the focus groups is to help draft the principles to guide the bid preparation.

In December open houses will be held to give the public the opportunity to review and comment on the principles. As a result of comments at Community Council meetings, the Principles will also be available at all Civic Centres and on the City's web site.

The following summarizes the motions from the Community Councils and the responses to the motions.

Appendix 2

Response to Council Motions of March and July, 1998

For ease of reference, the Council motions of March and July, 1998 have been categorized into broad issue-related categories as set out in the following sections. These categories are also being used as the basis for the focus groups and the development of the guiding Olympic Principles.

2.1Social Equity

Affordable Housing Strategy

Staff were asked to report, in consultation with the Advisory Committee on Homeless and Socially Isolated Persons, on issues and mechanisms to ensure the Games do not negatively impact on the homeless, isolated persons and tenants. Council also asked for a report, to be submitted to the Economic Development Committee this fall, on a by-law and proposed strategy to ensure full protection for tenants and homeless persons during the hosting of the Olympic Games, particularly in the areas adjacent to potential facilities such as South Parkdale.

Strategy to Protect Tenants and Homeless Persons during the Olympic Games

The City of Toronto is already facing a number of serious affordable housing issues, many of which have been described by in the Interim Report by the Mayor's Homelessness Action Task Force, such as a waiting list of 37,000 people for subsidized housing, and growing demand for emergency shelter space.

A number of strategies and activities are or will be underway to respond to these issues, and would be underway even without the impetus of preparing for an Olympic Bid. For example, the City recently approved a framework for an affordable housing supply strategy, undertaking affordable housing demonstration projects, examination of potential Official Plan amendments to improve protection of existing rental housing stock, and various eviction prevention programs including a rent bank pilot project. Furthermore, City Council at its meeting on October 28, 1998 recognized the current plight of the homeless by declaring homelessness a national disaster and calling for immediate action from the Provincial and Federal governments.

The Olympics can provide an opportunity to help achieve certain goals around affordable housing and respond to homelessness. It is also clear that the hosting of a successful Olympics that limits any undesired housing impacts, will require the development and implementation of tools and enhancements, in addition to those currently in place or under consideration to address issues of homelessness and the shortage of affordable housing supply.

Proper planning and management of an accommodation and housing strategy has been recognized as a critical component of Toronto's bid to host the 2008 Summer Olympic Games. This is best illustrated by the fact that Council has called on the organizers of the bid to develop a socially and financially responsible Olympics. Furthermore, City Council passed a series of motions at its meeting of July 9, 1998, related to housing and social equity. One of those motions requested a report on a by-law and proposed strategy to ensure full protection for tenants and homeless persons during the hosting of the Olympic Games, particularly in the areas adjacent to potential facilities such as South Parkdale.

In response to the request for a by-law and strategy to protect tenants and homeless persons it is recommended that a staff working group be formed to develop for City Council a comprehensive strategy for protecting tenants and homeless persons from potentially negative impacts of the Olympic Games, and at the same time develop a plan to maximize potential benefits of the Olympics for tenants, homeless persons, and local communities. The proposed strategy would be developed to build upon other corporate and Olympic initiatives already underway.

The strategy would be provided to Council by September 1999 to ensure Council has the information it needs to inform deliberations prior to finalizing Toronto's bid for the games in late 1999 / early 2000. This timing is consistent with timing of the social impact assessment which Council has also requested, and it is anticipated that some of the input received in the course of developing that assessment will relate to work which needs to be done on the strategy for protecting tenants and homeless persons.

In addition, staff has begun research and initial work on potential tools, including a review of work done by TO-Bid staff for the Advisory Committee on Homeless and Isolated Persons as outlined in the discussion paper Meeting the Accommodation and Housing Challenges of Toronto's 2008 Olympic Bid, May 8, 1998. There are a variety of issues that need to be addressed in any effort to develop the proposed strategy, including:

a. The proposed strategy is being developed during the Olympic bid period and will need to be reviewed and refined after the decision is made in 2001 on the actual location of the 2008 Olympics;

b. The specific legislative protections and enhancements proposed will need to be flexible to respond to a range of housing market conditions that may change over time and therefore cannot at the present time be accurately predicted;

c. The ability to reliably predict attendance numbers and to develop a strong Olympic accommodation program will play a significant role in understanding the potential of undesired impacts on the local housing market; and

d. The development of the strategy must be done in consultation with key stakeholders, this will ensure that the strategy provides the appropriate responses to the concerns raised and that there is a commitment by the various stakeholders to implement any proposed measures.

The strategy will address these issues by:

e.Identifying a variety of tools to ensure the approach is flexible, responsive, and timely. Tools proposed would be based on legislation, such as by-laws which may be adopted by Council under existing enabling legislation and proposing new enabling legislation. The strategy would also identify non-legislative options which may include enhancements to existing City programs and proposing new City-led initiatives;

f. Ensuring the strategy is comprehensive by linking it to other City initiatives (such as rent banks, emergency shelters, affordable housing supply initiatives, Official Planning Process, etc.) and other Olympic Bid initiatives (such as using the Olympic Village to achieve affordable housing supply goals, initiatives resulting from the social impact assessment);

g. Consulting with community stakeholders, elected officials and others to define opportunities and concerns. Identifying partnerships which may be required to implement the tools, including discussions with senior levels of governments. For example, the Province will be asked to work in partnership with the City to identify specific mechanisms to ensure that the city has the regulatory and program mechanisms to protect and assist vulnerable tenants and homeless persons are prior to and during the Olympics.

h. Conducting ongoing research, monitoring and analysis of the experiences of other cities which have hosted hallmark events, including monitoring of the 2000 Sydney Olympics, in an effort to identify "best practices" and "poor practices".

The strategy will be set out within the following framework:

• Protection of Tenants
• Housing for the Homeless and the treatment of homeless persons
• Impact on residential neighbourhoods adjacent to Olympic venues
• Affordable Housing Supply

If approved by Council, the strategy development process would begin with establishment the working group in November 1998 comprised of staff from Legal, Shelter, Support and Housing, Planning, Property Standards and other departments as required. In addition to regular meetings, the working group would liaise with staff of TO-Bid Corporation and with community agencies, neighbourhood groups, advocates for the homeless, and representatives of the senior levels of government. The proposed work plan contemplates initial research and stakeholders consultations to be conducted between November 1998 and May 1999. A full examination of legal, financial and program tools would be completed by March 1999. The working group would report back to Council by September 1999 proposing a strategy that consists of a series of recommended program and regulatory responses.

Social Impact Assessment Process

TO-Bid staff were directed by Council to work with social planning agencies and City staff to determine the best method of developing a full social impact assessment process for the Games and that it be prepared within the next six months. In addition, TO-Bid staff were directed to work with social planning agencies to consider the opportunity and viability of establishing a social investment fund from the Games -- to be provided within the context of a financially responsible Games.

The 2008 Toronto Olympics and Paralympics: Shaping A Legacy of Social Equity

When the Toronto's 2008 Olympic bid was approved in principle, City Council requested that a social impact assessment be conducted during the bid phase and that community planning agencies be consulted in the development of the assessment. A proposal for a social impact process has now been developed after discussions between the Community Social Planning Council of Toronto, the City of Toronto Social Development Department and the TO-Bid. This report provides an outline of the proposal to undertake a social equity impact and action plan.

Toronto's planned bid for the 2008 Olympics and Paralympics presents an opportunity to develop a unique approach to conducting a social impact assessment. Conditions exist that enable Toronto's bid to go beyond a traditional social impact assessment strictly concerned with mitigating anticipated negative social consequences from the preparation for and conduct of the Games. These conditions are:

• The multi-ethnic, multi-racial, and multi-cultural diversity of Toronto, already being highlighted as a major civic advantage for an international event of this importance.

• The widespread public concern in Toronto and Canada for the future of our children and youth in an extremely turbulent socio-economic environment.

• The sense of energy and purpose in shaping a new City at the outset of the 21st century, one that is both inclusive and equitable for all its residents.

These conditions suggest three clear objectives for a social impact assessment in Toronto's bid for the 2008 Olympics and Paralympics. They are:

1)To assess the existing and anticipated impact of the 2008 Games on the social well-being of the City, with particular attention to the most vulnerable and marginalized parts of the community.

2)To develop and implement plans that avert any negative social consequences for the City in preparing for and holding the Games in Toronto, especially for its most vulnerable and marginalized residents.

3)To maximize the opportunity presented by Toronto's Olympic bid to address the needs of the most vulnerable and marginalized and develop particular initiatives to support the needs of youth and ethno-cultural/ethno-racial minorities in the City of Toronto.

This approach to social impact assessment over the next decade could leave a strong legacy of "social equity" as a result of pursuing and securing the 2008 Olympics for the City of Toronto. The essential elements of this approach to social impact assessment would involve opportunities for community input into the Olympic process through community empowerment, participation and intervention.

1)Empowerment: There must be outreach to the full range of community, organizations, sectors, and citizen stakeholders on social issues related to the Olympics. All should have input into defining how the Olympics could enhance the social well-being of the City. Particular efforts should be made, however, to actively involve youth and people from the many ethno-cultural and ethno-racial communities and groups across the City. This means outreach to people in their own languages and in culturally appropriate ways.

2)Participation: In addition to outreach for identifying social issues and shaping a social vision for the Olympics, the process must include an "engagement strategy." Leadership from participant groups will be solicited and supported to develop further the ideas and proposals emerging from initial consultations.

3)Intervention: Community reports on social impacts related to the Olympics will be produced by this initiative. The main outcome, however, will be action on social equity objectives identified in the research and consultative process. The mobilization of citizens and community groups would be directed toward the generation of concrete initiatives that advance the participation in civic life of people reflecting Toronto's full racial and ethnic diversity, and the development of the capacities, skills and talents of the City's youth. Community partnerships with the City and with the private sector would be promoted to help resource these initiatives.

It is proposed that the formulation and implementation of the social equity impact and action plan be undertaken in three phases leading up to the bid city decision in 2001.

Phase One:Visioning the Impacts and Opportunities

January 1999- August 1999

• Preparation, submission and approval of detailed work plan and approval by TO-Bid;

• Social trends/scenarios research projecting major social issues facing Toronto in the first decade of the new millennium with/without the Olympics;

• Future search -- outreach to the community for visioning on the desirable future state of the City -- open-ended discussion on the potential of the Olympics to contribute to or impede the realization of this vision for the City;

• Preliminary Social Impact Report;

• Selected consultations on the civic participation and social development opportunities presented by the Olympics for vulnerable and marginalized communities;

• Final Social Impact Report on social impact and equity issues and strategic responses in bidding for and hosting the 2008 Olympics.

Phase Two:Social Impact and Equity Plan Development

Fall/Winter 1999

·Engage ethno-cultural/racial minority communities and youth as particular "stakeholders" in the potential for the Olympics to address equity issues(e.g. economic development, access to trades, and education for ethno-cultural/racial minorities; social-recreational programs, training, skill-building, and employment opportunities for youth);

·Plan and conduct stakeholders' strategy and design sessions to address anticipated social equity issues (based on "charette" workshop method used in architecture/urban planning fields) and plan for developing the opportunities with a multi-ethnic/racial/cultural and youth focus;

·Formulate concrete initiatives beneficial to stakeholders (ethno-cultural/racial minority communities and youth) associated with the Olympic bid and preparations;

·Secure commitment of public sector-private sector-community partnerships for action on proposed initiatives;

·Identify requirements and opportunities to resource concrete initiatives arising from the social impact and equity plan;

·Incorporation of social impact and equity plan into Olympic bid as part of City Councils consideration of the final bid.

Phase Three:Plan Implementation and Monitoring

January, 2000 - June, 2001

• Begin implementing specific initiatives identified from the social impact and equity plan and track progress based on developed public-private-community sector partnerships;

• Develop plans for sustaining these initiatives after the bid city decision is made in the Fall of 2001.

To ensure the appropriate organization and management of the plan an Olympics Social Impact and Equity Committee would be established. This Committee would include representatives of a community sector partner, a private sector partner, the City of Toronto Social Development Department and TO-Bid. The proposed Social Impact and Equity Committee would report to the TO-Bid on a regular basis through the Legacy and Community Enhancement Committee. Implementation of the proposal would be conducted by a community agency, which would assume responsibility for coordinating the research and field work for the Social Impact and Equity Plan. This agency would also convene and support a consortium of groups reflecting social equity concerns related to youth and racial/cultural diversity in Toronto:

Overall the proposed approach to social impact planning for the 2008 Olympics would generate a number of benefits which would distinguish the TO-Bid from its predecessors and competitors:

• A basic social impact assessment grounded in solid social trends research and public

consultation would be completed nine years in advance of the event.

• The social equity focus on opportunities for youth and ethno-cultural/racial minorities would provide an opportunity to promote civic participation, inclusiveness, and the social well-being of the new city.

• Provides a unique opportunity to generate concrete projects and initiatives that are inclusive of the community and demonstrate the benefits of the Olympic initiative.

• Creates the opportunity for the Olympic social assessment to reinforce the efforts of the City of Toronto, as it proceeds with the formation of a Social Development Strategy for the new city.

• Contributes to shaping a legacy of social equity in association with the 2008 Olympics.

TO-Bid has conducted initial research into other proposals to establish a social investment fund in connection with Olympic Games. Discussions have already begun with social agencies about the nature of a Toronto Olympic social investment fund. The next Olympic quarterly Council updates will report on the social investment fund options and a process for discussions with TO-Bid.

2.2Transportation

Council has raised a number of issues regarding transportation requirements and legacies of the Olympics at the Council meetings in March and July, 1998 and at the Community Council meetings in September and October, 1998.

Transportation is major component in the bid for the Olympics and after the bid is won, for the hosting of the games. The success of the Olympics often parallels the success or failure of the transportation system to meet the demands. The 1996 Olympics in Atlanta are remembered for the transportation difficulties experienced by the athletes, the media and the visitors. Since the 1996 Olympics, cities competing for the Games must increasingly demonstrate that the transportation demands are understood and can be met.

The motions by Council and Community Councils to date are indicative of the range of transportation issues facing the City now and those anticipated should the bid for the 2008 Games be successful.

At the bid preparation stage the transportation focus is on:

1. the transportation requirements of the venues to be included in the building and development plans:
2. determining the scope and magnitude of the overall transportation demands of the Olympic, including those of the disabled community, and how the City can meet them;
3. the transportation requirements of the athletes, coaches and officials who will require secure, dedicated transportation.

In addition, at this stage, the major transportation improvements planned to be in place over the next ten years to serve the City's needs should be assessed to identify their impact on the bid and the potential benefits to the City as Olympic host.

City Olympic Office staff initiated discussions with the City's transportation operators in July about the bid and the transportation issues regarding the Olympics. The preliminary comments of Transportation Services, TTC, GO Transit and senior staff are:

• The Olympic Transportation Plans should rely on public transit to move visitors and the public.

• The public transit system could accommodate the transportation demands with proper planning and if sufficient priority is given to buses and streetcars on the road system.

• Additional bus fleets and appropriate driver training will be needed for the period of the Olympics.

• GO rail service could operate at peak service all-day provided that alternative routing for freight traffic is arranged.

• Providing accessibility for the disabled must be an essential part of the Olympic transportation plan.

• Plans for construction of the new transportation infrastructure, such as the possible dismantling of the Gardiner Expressway, will require construction prior to 2008 and will need co-ordination with other construction projected related to the Olympics to ensure efficient and timely completion of all projects.

TO-Bid has commenced preliminary work on the transportation plan to host the Games and will be conducting further transportation analysis in 1999. TO-Bid has indicated that the transportation operators will be included in the preparation of the bid.

In order to ensure effective transportation planning for the bid for the Olympics and for hosting the Games, it is proposed that the City establish a framework for assessing proposed transportation projects as a coordinated effort amongst all of the transportation planning and operating agencies. Recently, the Strategic Transportation Planning Group (STPG) was established to ensure coordinated transportation planning and policy in the City. The STPG membership includes:

• the Executive Director of City Planning Division and Chief Planner for the City, Urban Planning and Development Services
• the General Manager of Transportation Services, Works and Emergency Services
• the Chief General Manager of the Toronto Transit Commission
• the Executive Director of GO Transit
• the President of the Toronto Parking Authority

The purpose of the STPG is to provide a coordinated approach to address complex transportation planning issues.

The STPG has identified the Olympics as one of its top priorities. The STPG should consider the requests from the Community Councils for a transportation master plan and the transportation legacies which could result from the Olympics. In addition, The STPG should provide direction and guidance to TO-Bid on the transportation assessment for the Olympic bid including:

• determining the transportation demands of hosting the Olympics;
• assessing the City's capability to meet the demands with existing infrastructure;
• compiling an inventory of planned and proposed transportation improvements;
• identification of those required desirable, should be advanced for the Olympics; and
• addressing Council requests transportation issues related to the Olympics.

The STPG should conduct this work with the other transportation operators in and around the City. As part of the public consultation on the Olympics, a transportation focus group is planned for mid-November and includes a broad cross-section of transportation agencies and advocates as well as groups representing the disabled communities to help develop principles to guide the transportation components of the bid.

At this preliminary stage there is support from Council and the public for a transit-oriented Olympic Games. The venues identified for the Olympics in the City are in locations with well-developed transportation systems. Staging the Olympics and providing efficient transportation to move the many athletes, visitors, and volunteers around the City would require extensive transit priority on the road network to greatly increase the transit service and capacity. TO-Bid is looking at past and future Olympic host cities to identify the most successful transportation practices for possible inclusion into the Toronto Olympic transportation plan.

2.3 Other Motions

Council Task Force

The Commissioner of Economic Development, Culture & Tourism was requested by Councillor Ashton to submit a report to council through Economic Development Committee on the composition, mandate and Terms of Reference of a City Council Task Force to provide oversight and independent assessment in the areas of social and fiscal responsibility for the Olympic Games; the Members of such Task Force to be recommended by the Striking Committee.

In July 1998, City Council supported the establishment of a Task Force to provide oversight and independent assessment in the areas of social and fiscal responsibility for the Olympic Games. In March 1998, Toronto City Council gave preliminary approval to a socially and financially responsible bid for the 2008 Olympic games. Between March and July 1998, the re were financial and social concerns raised about the preliminary plans prepared by the Toronto Olympic Bid Corporation and the information contained in the April application to the Canadian Olympic Association. One report went so far as to predict a one billion dollar cost overrun from the Olympic Games.

At the present time, TO-Bid is preparing to undertake "due diligence" activities on all aspects of the bid. This work will test the assumptions of the initial application to the COA and is aimed at satisfying City Council that it can proceed with a plan to host the Olympics that is both socially and fiscally sound.

The proposed terms of reference for the Task Force are as follows:

• The Task Force is proposed to be formed as a sub-committee of the Strategic Policies and Priorities Committee.

• The membership will consist of five members of Council with a majority of members from the Strategic Policies and Priorities Committee. Members will be selected by the Striking Committee.

• The Task Force to ensure that they establish a procedure to provide further oversight and independent assessment of the social and fiscal aspects of the bid.

• The Task Force is to specifically review the final proposed bid budget and the assumptions concerning both operating and capital revenues and expenditures. A review of the social measures proposed as part of the bid is also to be undertaken. The Task Force is also to review the adequacy of any guarantees or commitments received in connection with the bid and Toronto's hosting of the Olympic Games.

• The Task Force is to meet as required, with a minimum of three meetings a year.

• The Task Force will report as part of the regular Olympic updates to the Strategic Polices and Priorities Committee.

• The Task Force will review the final bid proposal and provide recommendations to City Council concerning the financial and social aspects of the bid.

• Resource support to the Task Force to be provided by the City Olympic Office and City staff.

Relationship of the Bid to the City's Official Plan process

The Commissioner of Urban Planning and Development Services was requested by Councillor Jones to submit a report to the Urban Environment and Development Committee on the possible impacts of the Olympic Bid on the new City of Toronto Official Plan process.

The Urban Planning and Development Services Department is currently mapping out a process for the new Official Plan for the City. The community consultation process of the Toronto Olympic Bid will reveal issues and concerns that will provide input into the Official Plan process.