“We are experiencing a major change in humanity, a change of era which is a complete change of system that we must strive to understand in order to know how to respond. For this, we cannot stay with the old answers, we need new ideas for new realities. […] Analyze our time and construct complex thinking capable of accounting for the underlying dynamics” – Edgar Morin
Since 2019, the Legault government has been engaged in a vast operation to rejuvenate and complete the legislative framework for territorial planning in Quebec. A new version of the Law on land use planning and development was adopted on 1er June 2023. On June 6, the first National Architecture and Land Use Planning Policy was made public, followed by its 2023-2027 Implementation Plan on June 26. New Land Use Planning Guidelines will be adopted during the winter of 2024. A broad consultation was launched on June 21 with a view to “modernizing” the Law on the Protection of Land and Agricultural Activities. The new version should be submitted in the fall of 2024. Currently, the Ministry of Municipal Affairs and Housing is working on revising its Strategy to ensure the occupation and vitality of territories as well as the law of the same name.
However, an important piece is missing from this legislative body of territorial planning. This is a local and regional economic development strategy, promised but always postponed, or even abandoned. The need for such a policy arises from the observation of development disparities between territories, disparities which generate economic and social inequalities which a responsible State must aim to reduce.
An umbrella policy for territorial planning
Because each of the components of this legislative framework is closely linked to the others, practices in isolation have no reason to exist. Ideally, a global and integrated policy would bring together laws, strategies and policies with territorial impact, under the responsibility of an interministerial committee responsible for defining and promoting an overall vision of territorial planning in its various aspects, and ensure the practice of transversal approaches (consultation, harmonization, coordination) for consistency in actions.
Four ministries would participate in this committee: Municipal Affairs and Housing, Agriculture, Fisheries and Food, Economy, Energy and Innovation (regional economic development) and Transport. Permanent attention would be given to the Sustainable Development Act “promoting environmental protection, social progress and economic prosperity.” Leadership of the committee would be entrusted to the Ministry of Municipal Affairs and Housing.
The occupation, planning and development of territories in the 21st centurye century require solid, thoughtful, documented voluntary political acts, based on anticipation rather than on past trajectories.
The prerequisites
Draw up an updated portrait of territorial inequalities in terms of economic activity, access to employment and public services, household income, as well as cultural dynamism. Link this portrait to a social project concerned with equal opportunities for everyone, everywhere.
Choose to act on the causes of territorial inequalities rather than on their effects.
Capture, understand and evaluate current economic, technological, social and environmental developments which create new territorial logics and which have an effect on the occupation of the territory and in particular on the geographical distribution of economic activities, employment, services public and the population.
Promote territorial planning which pursues the objective of rebalancing between metropolitan areas and regions.
Six strategic directions
1. Recognize the major role of the metropolitan communities of Montreal and Quebec in the economic and social development of current and future Quebec. A role and ambitions that the Policy will however rethink so that the growth of these two metropolitan centers does not come to the detriment of intermediate and peripheral territories.
2. Consolidate the network of small and medium-sized towns and villages in the region to increase their attractiveness and competitiveness. The aim is to ensure a better geographical distribution of economic activity and population across all regions, while reducing growth pressure on large cities. Deploy economic activity and employment across all territories.
3. Opt for the multipolar model rather than the economic and demographic concentration model, including a local and regional economic development strategy. Bringing living and working spaces closer together.
4. Densify urban perimeters to counter sprawl on good agricultural land and wetlands, a densification that has a human face, integrating the notions of diversity of functions and diversity of different types of housing.
5. Adopt measures to combat climate change. Integrate strong concerns in this area, accompanied by vigorous measures to reduce GHG emissions and adapt to climate change.
6. Increase the role of MRCs. While recentralization efforts are being deployed to curb the sprawl of large cities, questions are being asked about the merits of their unlimited growth, densification measures are being adopted to optimize land use and promote new ways of inhabiting urban space, that large sections of economic activity and employment have the potential for deconcentration, the MRCs constitute an alternative solution to metropolitan agglomerations, while reconfiguring the occupation of the territory according to a more balanced model.
The MRC appears to be the right level of effectiveness for local governance. The capitals of the MRCs and regional cities become balance centers for Quebec inhabited outside metropolitan areas. The increased role of the MRCs will be accompanied by a new stage of decentralization and a reform of local taxation.