Skip to content

How Vancouver uses innovative mapping to guide equity-led parkland investment

This case study is part of the 2023 Canadian City Parks Report, showcasing Inspiring projects, people, and policies from across Canada that offer tangible solutions to the most pressing challenges facing city parks.

Summary

  • VanPlay is Vancouver’s ambitious parks and recreation master plan, addressing equity, population growth, and evolving demographics to ensure green spaces are meeting needs across the city.
  • Analyzing factors like park access, low barrier recreation demand, and tree canopy coverage, the master plan ensures efficient decision-making and targeted policies to address historical inequities.
  • VanPlay proposes an integrated strategy, including bike lanes, revitalizing urban streams, and adding network enhancers for a more vibrant, connected, and accessible parks system.

The Vancouver Park Board is now four years into their 25-year parks and recreation master plan, VanPlay. With a focus on equity, population growth, and evolving demographics, this strategy sets the stage for investments in green spaces and ensures the city keeps up with emerging needs.

While the city now boasts more parks than it did 25 years ago, rapid densification has resulted in a one-third decrease in park space per person. To tackle this challenge, the master plan offers a toolkit for efficient decision-making, accommodating diverse needs and user groups.

What sets this strategy apart is its integration of equity principles, including examinations of intersectionality, privilege, and oppression. At the heart of VanPlay is the goal of rectifying historical inequities in park access and quality across different neighbourhoods. VanPlay positions the City of Vancouver as a leader in this area.

VanPlay employs geospatial data to identify underserved areas that require increased park investments. These areas, known as Initiative Zones, are identified through an analysis of three key factors: park access gaps, demand for low barrier recreation, and tree canopy coverage. With the option to layer additional factors over time, such as income, community engagement, capital investments, and demographic data, the Park Board can gain a deeper understanding of nuanced needs and can effectively target key policy areas.

People running and walking their dog on a footpath along the water
Seawall, Vancouver, Vancouver Board of Parks and Recreation, 2021

A significant priority of VanPlay is its water strategy. Vancouver, a city renowned for its connection to the waterfront and beaches, has unfortunately buried 91% of its urban streams. VanPlay enhances biodiversity and rainfall management by revitalizing these streams and bringing them back to the surface. This initiative simultaneously creates more natural spaces in the city, provides new amenities for residents, and helps manage rainwater during storms. It is a significant win for biodiversity and climate resilience.

When it comes to public space, streets play a crucial role. In Vancouver, streets occupy 32% of the city’s land area, compared to 11% for parks. Recognizing this untapped potential, VanPlay encourages the transformation of streets into public spaces. Collaborating with Planning and Engineering, the master plan suggests the creation of parklets, street closures, laneway activations, and more to meet the growing demand for public space.

A woman on an e-scooter in a bike lane
Bike lane, City of Vancouver

Connectivity is another key focus of VanPlay. Vancouver already boasts the world’s longest continuous waterfront trail, the iconic 28 km seawall. Building on this success, VanPlay aims to expand the city’s network of bike lanes and pedestrian pathways. The master plan also introduces “network enhancers,” such as bike repair stations, wayfinding signage, lighting, and seating. These elements not only improve connectivity but also enhance safety, utility, and overall enjoyment between destinations.

Recommendations

  • Invest in data-informed tools using an equity-based lens that can help allocate scarce resources where they’re needed most.
  • Collaborate with transportation and other related departments to create a plan for the funding and operations of streets converted to temporary, permanent, or flexible pedestrianized public spaces.
  • Explore approaches to advance a more ‘connected’ park system, by harmonizing parks with blue spaces, other urban parks, and bike lanes.

Further Reading:

How a squeeze on park space and funding is necessitating a look inward

This case study is part of the 2023 Canadian City Parks Report, showcasing Inspiring projects, people, and policies from across Canada that offer tangible solutions to the most pressing challenges facing city parks.

Summary

  • As park space and funding becomes scarce, cities are turning more to look at the quality and performance of existing spaces.
  • Few cities measure the quality of park amenities and experiences, while all have some measures of park quantity.
  • Layering uses to allow for a greater intensity of use is one way to maximize the potential of existing parkland.

As cities struggle to find and pay for new park space to meet growth needs, some argue that a shift towards focusing on quality is part of the solution.

Having enough park space is critical, but the quality of park space can greatly determine its use. Quality can be about the amenities present (or missing), but it can also be about whether a space feels welcoming or safe to people.

Outdoor seating in a leafy parks
Andrée Lachappelle Park, Montréal, Clémence Marcastel, Park People, 2022

“We have to realize that we are transitioning to a state in which securing parkland through development will incrementally become more challenging, effectively leading to a reduction in parkland per capita over time in the absence of alternative parkland acquisition tools,” said one park manager in an Ontario municipality, citing changes to provincial legislation in Ontario that affect the amount of parkland cities receive through development.

“Which means we need to look at quality and use of space rather than quantity much more effectively.”

Park Manager

This park manager noted their city is already seeing a reduction of parkland area in development applications—in some medium to high density new growth areas, the city is seeing up to a 60% reduction in the ability of securing future parks. The reduction is much more acute in high density neighbourhoods where more and more people are required to share fewer public spaces.

While quick to point out that this change is detrimental, this manager also sees a potential positive in pushing cities to look more closely at existing assets and how best to use them.

So, what does a focus on quality look like?

It might look like ensuring park spaces have amenities that a nearby community needs and that those amenities are in good repair. It might also lie in understanding the socio-cultural dimensions of a park and whether the facilities, programming, and overall design are relevant for surrounding communities.

These seem like basic measures, and yet just 43% of cities said they measure park quality at all. Even fewer collect socio-demographic data on park use to understand whether the park is meeting diverse community needs. At the same time, 100% of cities reported aging infrastructure and asset management as a challenge.

For one park manager, part of the answer lies in rethinking the intensity of use of parkland and ensuring that we’re maximizing the potential of land and amenities.

People playing volleyball in a park
Parc La Fontaine, Montréal, Clémence Condemi, Park People, 2022

For example, the manager noted that one of the challenges that growing cities are facing is designing for large format sports facilities like soccer and baseball, which are land intensive while limited to a single use. If cities are going to need more of these facilities to meet demand, the question is then how to increase the intensity of use in existing assets for longer periods of time, rather than simply thinking about where to build new ones, this person said.

One idea might be looking at seasonal doming of sports fields so they can be used all-year regardless of weather conditions. Other cities, like North Vancouver, are turning disused infrastructure into amenities that meet current demands, like transforming an old swimming pool into a skatepark. Other cities have split uses between warmer and colder months, allowing for once single-use facilities, like tennis courts, to be used for other purposes, like off-leash dog areas in the winter months.

All show the potential of rethinking existing spaces to ensure they’re performing well and meeting current community needs.

Recommendations

  • Ensure spaces are designed to maximize use in all weather and seasons through infrastructure such as shade structures, awnings, and other elements to manage microclimates.
  • Conduct regular assessments of park quality that look at the number and condition of amenities, but also resident surveys to understand non-observable experiences of perceived safety, comfort, and inclusion, with particular attention to equity-deserving groups.
  • Design spaces to be used flexibly, by finding ways to layer multiple uses by season or time of day, and designing single amenities to be used two or more ways.

Bridging the Gap: How the park sector can meet today’s complex challenges through collaborations and partnerships

Park People is excited to launch the 2024 Canadian City Parks Report, our sixth annual edition highlighting the most significant trends, issues, and practices shaping Canada’s city parks. 

Watch our special launch webinar to explore our findings:

  • 6 key insights from interviews with park staff and specialists,
  • 9 case studies showcasing inspiring people, projects, and policies from across Canada,
  • Data from surveys of 35 municipalities and over 2,500 residents.

The webinar features an engaging discussion on the future of city parks, with guest speakers from the City of Victoria and Greenspace Alliance. They share opportunities and challenges in their work around collaborations and partnerships, across city departments, communities, non-profits, and more.

Recording

Panel

Today, Park People launches the sixth Canadian City Parks Report–and the final iteration of this report in its current form, Bridging the Gap: How the park sector can meet today’s complex challenges through partnerships and collaboration.

Last year, we dove deep into the minds of park managers across the country, interviewing over 44 senior parks staff across 30 municipalities about the trends and challenges in the industry. One of the key insights from that process was a need to find collaboration sweet spots to achieve our many collective parks goals. 

This year’s report expands on that insight by showcasing collaborative examples from across the country and through collecting data from 35 Canadian municipalities, over 2,500 residents of Canadian cities, as well as interviews with park staff and professionals.

Key Insights

Through that process we found six key insights related to collaborations and partnerships:

  • Park budgets are not keeping pace with need.
    • Years of insufficient parks operations budgets are challenging city parks departments and coinciding with a slip in resident satisfaction.
    • 78% of cities said insufficient budgets meant inadequate staffing levels, while 75% said it meant delays in park projects or planning.
  • Residents feel disempowered, but want to engage.
    • While residents want to get more involved in parks, city parks departments struggle with limited resources to provide opportunities for long-term engagement. 
    • 83% of cities said that with limited resources it can be difficult to conduct ongoing, proactive community engagement beyond standard consultation on park projects.
  • Mental and physical health benefits are key, but lack proactive programs.
    • Mental and physical health are the top benefits of park use for residents, presenting a big opportunity for cities to further these impacts with specific programs. 
    • 95% and 93% of residents believe parks play a positive role in their physical and mental health, respectively.
  • Departmental structures can promote collaboration–or disconnection.
    • A minority of cities structure their parks departments with operations and design together, potentially leading to gaps between what gets built and how it gets maintained.
    • Nearly ⅓ of cities said their organizational structure makes it difficult for parks staff to collaborate with other divisions/departments. 
  • Partnerships are critical, but cities need policies and structures.
    • City parks departments recognize the benefit of partnerships, but struggle with the policies and procedures to navigate them with ease. 
    • 61% of cities said a barrier to partnerships with nonprofits was an inability to meet municipal standards.
  • Growing park issues require more training and collaborations.
    • There are big issues facing parks and residents want to see cities act, but to do so park staff need more training and collaborations with other city departments.
    • 92% of cities agreed that in recent years parks departments are facing increased pressure to address issues beyond “traditional” parks issues.

In this report you’ll find:

  • A roundup and analysis of the latest park data showcasing trends and challenges  from our surveys of over 2,500 Canadian residents and 35 municipalities across Canada–our most ever surveyed.
  • A library of nine case studies from across the country featuring inspiring projects that provide tangible recommendations for how to spur action in your own city. 
  • A listing of 35 City Profiles with the latest data from parkland provision goals, to parks amenities, to budgets.

Case studies

How does the City of Victoria’s Get Growing Victoria program take a food justice approach to provide gardening supplies to communities at risk of food insecurity, including those experiencing houselessness, Indigenous and racialized communities, seniors, and youth.

How Toronto is transforming future park spaces into temporary public areas through partnerships, letting residents enjoy them now while planning for long-term park development.

How partnerships across city departments and with local community groups helped the City of Charlottetown recover from Hurricane Fiona’s devastating winds.

How Mississauga is expanding parkland in a growing neighborhood to meet future demand through a cooperative, long-term property purchase plan.

How a temporary plaza in Montreal’s Parc Marcelin-Wilson was created to offer a gathering space for youth, with design improvements informed by Metalude’s insights through direct observations and youth engagement.

How an agreement between the Tsleil-Waututh Nation and Metro Vancouver Regional Parks provides a path for shared cultural planning.

How can municipalities move from awareness to action? A conversation with Jay Pitter about Black people’s experiences in parks and public spaces.

How Waterfront Toronto is raising the bar on inclusivity through their Waterfront Accessibility Design Guidelines.

How Nature Canada is building a web of partners at all scales to help Canada achieve its biodiversity conservation goals.

Launch Webinar: Watch the Recording

Park People launches the fifth annual Canadian City Parks Report, Surfacing Solutions: How Addressing Conflict and Reframing Challenges as Opportunities Can Create More Equitable and Sustainable Parks.

Over the past five years of the Canadian City Parks Report, our goal has always been to tell a story—the story of where city parks are going and where they need to go. 

This year, we took an even deeper approach to gathering these stories. We sat down for interviews with 44 senior parks staff across 30 municipalities, who generously shared with us the challenges they are facing, the projects and people inspiring them, and their vision for the future of city parks.

In the report, we weave together the themes we heard from those conversations with the data we gathered from our surveys of 35 municipalities and over 2000 residents of Canadian cities. 

Key Insights

Dive into the pdf to read about our key insights on trends and challenges in city parks:

  1. Plan for higher park use  –  Preparing for the new normal of a higher baseline of park use
  2. Refocus on quality  –  Ensuring the parks we have are performing at their best
  3. Explore new park typologies and funding arrangements  –  Identifying new types of parks for growing, urbanizing cities
  4. Prioritize public education along with naturalization  –  Growing support for naturalization efforts through public education
  5. Systematize climate resilience park improvements  –  Embedding climate resilience within park designs to safeguard the future
  6. Deepen the focus on park equity  – Moving beyond amenity distribution to look at the social side of park equity
  7. Adopt rights-based encampment strategies  –  Working with unhoused communities to find solutions with dignity
  8. Experiment with flexible designs and policies to manage conflicting use  –  Addressing use conflicts so parks can work better for more people
  9. Increase funding and support for community involvement  –  Supporting community involvement beyond one-time capital projects
  10. Find the internal collaboration sweet spots  –  Leveraging departmental collaborations to achieve multiple overlapping goals

Case studies

As cities struggle to find and pay for new park space to meet growth needs, some argue that a shift towards focusing on quality is part of the solution.

Discover Vancouver’s ambitious parks and recreation master plan, using innovative mapping to guide equity-led parkland investment.

Brampton leads the way with its Eco Park Strategy, a citywide initiative focused on naturalization projects that preserve and enhance natural and cultural heritage.

How the City of North Vancouver is working to better engage equity-deserving groups in its longstanding Park Stewards program, including people who are underhoused, newcomers, and at-risk youth.

The Montreal’s Darlington Ecological Corridor bridges urban and natural spaces while addressing both ecological restoration and social needs through meaningful partnerships.

A look into the logistics of collaborative governance in a large urban park with Meewasin Valley Authority in Saskatoon.

Learn more about the District of Saanich’s collaborative approach to tackling conflict over off-leash dog parks.

How cities are navigating the benefits and challenges of privately owned public spaces (POPS) through creative policies and guidelines on design, stewardship, and public programming.

Restoring the Don River’s natural flow, Toronto’s renaturalization project enhances biodiversity, mitigates flooding, and reconnects the city with its waterways.

Public washrooms are a park necessity.. Discover Edmonton’s approach to creating safe, inclusive public washrooms.

Bill 23: A conversation with Michelle Dobbie, Manager Park and Natural Heritage Planning, City of Richmond Hill.

Launch Webinar: Watch the Recording

Happy reading!

I will retire from my co-leadership position at Park People at the end of June 2024, thirteen years after I founded the organization.

This milestone has me considering the many positive changes that have happened in urban parks in Canada since 2011 and the special role that Park People has played in advancing them. It’s been quite a journey for me, the organization, and Canada’s incredible ecosystem of city parks. 

Since the very beginning, Park People’s work has been about creating new connections—between people and nature, between neighbours when they meet by chance in public spaces, and between leaders and bold ideas that can make our parks even better.

Park People’s own origin story echoes this theme brilliantly. In 2010, I released a paper for the Metcalf Foundation, “Fertile Ground for New Thinking,” with my ideas for improving Toronto’s park system. Its final recommendation was to start a park-focused NGO in the city. At the time, I had absolutely no intention to start or lead such a group, but an enthusiastic group of people were inspired by the paper and pushed me to start an NGO. In return, I cajoled them into becoming our founding board members and volunteers. We then embarked on a bold plan to support more people to see themselves as park leaders and to connect them to the tools they would need to create great parks for everyone.

On April 12, 2011, we officially launched Park People with our Toronto Park Summit. This was our first opportunity to connect park professionals and emerging advocates in our city. Through these lively conversations, we began building the collective power required to support and sustain vibrant green spaces that all urban residents can enjoy.

Source: Toronto Park Summit. Toronto, 2012

In the years since our original group of board members and volunteers has expanded exponentially: Park People now has more than 25 staff members, offices in Vancouver, Toronto, and Montreal, and a national board of city and community builders. We’ve also engaged thousands of new supporters — our Park People Network now unites 1,400 local park groups in 35 cities in every province, and we’ve provided grants to grassroots community leaders to animate their parks in 21 urban areas.

Source: First Park People work retreat, Ontario, 2022

Yes, Park People has grown and thrived — but what has this meant for parks in Canada?

When launching Park People, our goal was to spark a city parks movement that could fundamentally change how our society sees the value of these public green spaces. It was an ambitious vision, but I think that through our work with many great partners and community leaders, we’ve achieved it. 

Canada’s parks have changed significantly in these last 13 years, mostly for the better. Park People is proud to have been a small part of these shifts, contributing vital research on trends and opportunities and working with governments and park leaders to support progressive park policies.

As a result:

Parks have become our communal backyards

The major increase in park use during the height of the pandemic wasn’t a one-time blip: I’ve never seen so many people using our parks in so many new and creative ways. Parks are where we meet with friends, celebrate occasions, mourn losses, sample great food, hear music, and experience art—they’re key to the diversity, richness, and joy of urban life.

Source: Clean Toronto Together and Trees Across Toronto, Toronto, 2013

This belief has long guided the design of Park People’s grants, training, and networking programs, which have helped hundreds of people turn their parks into dynamic community hubs. We’ve consistently made the case for the unique value of parks, from our parks-focused platform for the 2014 Toronto election to solutions papers, national conferences and our Canadian City Parks Report.

Parks are no longer seen as “nice-to-have” amenities but essential urban infrastructure

They aren’t frills—they’re core to the character of our communities. Our research has shown that they measurably improve our physical, mental, and overall well-being and can serve as antidotes to the social isolation and loneliness epidemic.

Source: Park Summit, Toronto, 2015

Equitable access is now central to park planning

Who isn’t using parks is as important as who is. Through programs like Sparking Change, Park People centres equity-deserving communities in our program planning and delivery, collaborating with them to ensure their knowledge and experiences make parks accessible for all. As we embark upon this work and share what we have learned from it, we’ve observed that equity metrics have increasingly become a core part of park planning and acquisition strategies in municipalities across the country.

Source: Weston Family Parks Challenge, Toronto, 2014

City parks can support reconciliation

As Rena Soutar of the Vancouver Parks Board says, “There is no such thing as a culturally neutral space that’s been touched by human hands.” The 2022 Park People Conference featured three of Canada’s leading Indigenous park professionals, Rena, Lewis Cardinal, and Spencer Lindsay, who addressed how colonialism plays out in park practices and how we can embed reconciliation and decolonization into the places we call parks. As an example, the Vancouver Park Board has implemented co-management and guardian programs with Indigenous communities. At the same time, Edmonton worked closely with Indigenous leaders on kihcihkaw askî, the country’s first urban Indigenous culture park site.


Parks are acknowledged as key components of urban resilience to climate change

As our climate changes, urban parks are becoming increasingly important spaces to mitigate heat, absorb stormwater, and protect plants, animals, and people. Park People has been at the forefront of highlighting opportunities for parks to serve as powerful tools for climate change mitigation and adaptation.

Source: Park People staff at a Global Climate Strike, Toronto, 2019

Underused spaces are becoming great parks

The value of a park doesn’t lie in size. Small pockets of green space can be far more meaningful to our well-being. As our cities increasingly densify and the cost of land rises, we’re seeing neglected spaces such as those under highways, roads, electricity corridors, railway lines, and even old landfills being transformed into beautiful natural spaces. Our research and financial support helped spur such innovative parks as Toronto’s Meadoway and Bentway and Calgary’s Flyover Park. 

Source: Park People staff at The Meadoway multi-use trail tour, Toronto, 2024

Working for a city parks department has gotten more challenging but also more rewarding

We’re asking a lot of our municipal parks departments. More people are using parks, and staff are now entrusted with addressing issues of homelessness, equity, reconciliation with Indigenous people, climate change mitigation, and adaptation. In my opinion, their work is more interesting and rewarding, and park staff are making a positive difference in our cities and communities. But it’s certainly a tougher job than it used to be. In response, Park People has made supporting and connecting our municipal park staff partners one of our top priorities.

Source: Second National Park People Conference, Montreal, 2019

Parks department budgets are falling behind

The populations of our cities are rapidly increasing, and park budgets in Canadian cities are frankly not keeping up. If this longtime trend continues, I’m concerned about what our parks will look like 13 years from now. Without appropriate funding, there won’t be enough parks to meet community needs. We’ll slide down into an American-style model, where a lack of government support created a crisis in parks that philanthropy and private conservancies had to address. Partnerships and philanthropy are great, but there is absolutely no replacement for properly funded city parks departments.


Solutions lie in collaboration

Creative community partnerships are no longer the exception for city parks; they’re the norm. From working with local volunteer groups to creating formal park conservancies, park departments are embracing collaborations with unexpected partners to add value to city park resources, not replace them. Park People made the case for such partnerships from our earliest days, and we have helped to nurture and lay the groundwork for some of Canada’s leading park partnership models. Meanwhile, the federal government is becoming an important player in city parks. Canada was once one of the few jurisdictions without a strong federal role in city parks. But after creating Rouge National Urban Park in Toronto, the federal government has initiated a process to create six new national urban parks across Canada in the next few years. Provinces like Ontario, which have traditionally stayed away from pursuing provincial parks in cities, have also committed to new urban parks. Park People has been excited to partner with governments and support these game-changing efforts. 

Park People didn’t invent community involvement in parks — there were people across Canada doing that long before 2011. But we played a critical role by bringing them together, amplifying their voices, sharing their successes, inspiring others, and most fundamentally, making it easier for them to unlock resources and address barriers so that they can make their parks more vibrant and their neighbourhoods stronger.

The last 13 years have seen incredibly positive changes in Canada’s urban park system. I’m proud to say that Park People has played an important role in advancing these developments.

Nurturing Relationships & Reciprocity: How collaboration, mindfulness, and power-sharing in parks can help nurture and repair relationships between ourselves, our communities, and the wider natural world

Park People launches the 2022 Canadian City Parks Report, the fourth annual report featuring the biggest trends, issues, and practices shaping Canada’s city parks. 

In the webinar, you can hear directly from the Canadian City Parks Report authors—Adri Stark, Emily Riddle, and Jake Tobin Garrett and get the inside track on:

  • The latest park data gathered from 30 cities across Canada,
  • New insights from a survey of  3,000+ Canadians, 
  • Leading park practices derived from 30 + expert interviews,
  • In-depth stories on nurturing and repairing relationships between ourselves, our communities, and the wider natural world.

The session features an in-depth discussion moderated by Park People Board Chair Zahra Ebrahim. The webinar is held in English; French subtitles are available.

Surfacing Solutions: How addressing conflict and reframing challenges as opportunities can create more equitable and sustainable parks

Park People launched the 2023 Canadian City Parks Report, the fifth annual report highlighting the most significant trends, issues, and practices shaping Canada’s city parks

Watch the webinar recording to meet the report’s researchers and writers and get the inside scoop on:

  • Our new 10 key insights surfaced from interviews with over 40 municipal staff, exploring how addressing conflict and reframing challenges as opportunities can create more equitable and sustainable parks,
  • 12 case studies highlighting inspiring people, projects and policies from across Canada, 
  • The latest park data from our surveys of 35 municipalities and over 2,000 residents of Canadian cities.  

The report launch webinar features a lively discussion on the report’s key findings and future directions for city parks.

This hour-long webinar features Adri Stark and Jake Tobin Garett, co-author of the report. It is moderated by Selina Young, member of Park People’s Board of Directors and Director, Indigenous Affairs Office at the City of Toronto. 

The webinar is held in English; French subtitles are available.

Panel