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HomeMy WebLinkAboutSUS 05-23Report to Executive Committee Report Number: SUS 05-23 Date: June 5, 2023 From: Kyle Bentley Director, City Development & CBO Subject: Urban Farming - Council Resolution #100/23 - File: D-7001-026 Recommendation: 1. That Report SUS 05-23 regarding Urban Farming be received; 2. That staff be directed to report back to Council with an update on urban farming actions as outlined in this report in the first quarter of 2024; and 3. That the appropriate officials of the City of Pickering be authorized to take the necessary actions as indicated in this report. Executive Summary: On February 27, 2023, Council directed staff to “consult with stakeholders regarding the implementation of an Urban Farming pilot project for the enjoyment of urban backyard egg production only and Urban Farming to include vertical farming” (see Attachment #1, Council Resolution #100/23). The keeping of backyard chickens and the growing of food vertically are activities of urban farming practices. Following the motion, staff sought permission to separate the resolution into two reports: one specific to backyard egg production; and the second about other facets of urban farming, which is the focus of this report. Corporate Services Department (Animal Services section) staff prepared Report AS 01-23, regarding the request to investigate the introduction of an urban farming pilot project, including backyard chickens program, for Council’s consideration at the June 5th Executive Committee meeting. The purpose of this report is to provide a general overview of urban farming, including vertical farming, and how the City of Pickering currently supports urban farming activities. The report also includes a summary of municipal best practices to support urban farming, and identifies and recommends short- and long-term actionable items that can be explored to further support urban farming initiatives in the City. Urban farming, which is commonly referred to as ‘urban agriculture’, is the activity of growing food in a city environment, and traditionally includes community and backyard vegetable gardens, roof and balcony gardening spaces, growing of fruit trees and shrubs, edible landscaping plants, and the raising of animals within a city (Adapted from the Ministry of Agriculture, Food and Rural Affairs (OMAFRA) Urban Agriculture Business Information, 2023). SUS 05-23 June 5, 2023 Subject: Urban Farming Page 2 While urban agriculture defines where food is grown, vertical farming reflects a specific method of how food is grown for personal and commercial use. The primary purpose of this method is to produce the maximum amount of crops in the smallest amount of space. Typical agriculture technologies that are used in vertical farming include hydroponic (water-based), aeroponic (mist-based), and geoponic (soil-based) systems, where hydroponic systems make up most of the market share (Brock University – Niagara Agriculture Municipal Learning Network, 2022). In Ontario, vertical farms often produce leafy greens like lettuce, arugula, microgreens, spinach and kale, and herbs such as oregano, mint, basil, cilantro, and parsley. The Region of Durham (Invest Durham) leads activities to support the commercial vertical farming business sector. The City has long recognized the importance of urban agriculture in addressing food supply, food security, and sustainable urban development, which reduces carbon emissions and provides opportunities for social interaction and community cohesion. The City has implemented initiatives tailored to support urban agriculture, including: • Supporting Official Plan policies and zoning provisions that encourage community gardens in all land use categories and zones. • Approving a Community Garden Policy (ADM 240) to provide a framework for the City to work with Community Groups on future community garden sites on municipally owned, leased/licensed land. • Coordinating annual in-person and virtual educational workshops and webinars. These sessions increase awareness about the benefits of growing food, and teach residents how to grow food regardless of the size of their space, e.g., plot gardens, container and balcony gardening. • Hosting an award-winning City Centre Farmers’ Market, through which the City provides access to locally grown fresh produce, as well as supports local small businesses. • Providing funds through the City’s Environmental School Grant and Community Grant. These grants provide funds that have helped schools, Valley Plentiful Community Garden (VPCG) and not-for-profit groups implement urban agriculture initiatives. • Working with the VPCG committee to facilitate the operation of a large scale community garden (over 100 plots). • Working with builders for new development in the City to encourage community gardens on private lands. • Amending the community garden section of the Recreation & Parks Master Plan, adding a definition and zoning provisions for community gardens in the new draft Comprehensive Zoning By-law, and providing comments in support of a community garden in the Region of Durham Meadoway Study. To investigate other opportunities to support urban farming, staff undertook a municipal scan with surrounding municipalities to review best practices for encouraging and promoting urban agriculture. A common element across Ontario is establishing an urban agriculture strategy, Official Plan policies, as well as zoning provisions, to reduce regulatory barriers to urban agriculture. In some cases, municipalities included voluntary actions in their green standards to support urban agriculture for new development. SUS 05-23 June 5, 2023 Subject: Urban Farming Page 3 In consultation with other City Departments, staff have identified short- and long-term actions to enhance support for the many facets integrated into urban agriculture to increase residents' awareness, access, and uptake within the City. Financial Implications: Not applicable to this report. Discussion: 1. Overview of Urban Farming (Urban Agriculture) Urban farming, urban agriculture, or urban gardening generally refers to food production, processing, and distribution in urban areas, typically in smaller spaces and different scales than traditional agriculture. Since 2003, there has been an emergence of urban agriculture in Durham. In 2019, the Province, and the Region of Durham recognized urban agriculture as part of the Region’s Agricultural System with policy support and a clear definition in the new Regional Official Plan. According to the draft Durham Region Official Plan (Envision Durham Agriculture and Rural System Discussion Paper (2019)), urban agriculture generally refers to the production, processing, and distribution of food in urban areas, typically in smaller spaces and different scales than traditional agriculture. Urban agriculture can take place within many contexts, including urban and rural settlement areas. Common characteristics of urban agriculture include: community gardens; urban farms; rooftop gardens; greenhouses or vertical farming; aquaponics; beekeeping; and the keeping of backyard chickens. Note that the Final draft Durham Region Official Plan was approved by Regional Council at a Special Council meeting held on May 17, 2023. The new Region of Durham Official Plan (Envision Durham) also includes permissions for the establishment of urban agriculture uses within appropriate land use designations, and further encourages municipalities to support urban agriculture through policies and mapping, as suggested by the Province’s guidance documentation on urban agriculture (OMAFRA Urban Agriculture Business Information). Defined slightly different by various municipalities and regions to reflect the activities that have evolved in those areas, urban agriculture also includes farmers’ market, corporate commitment to local food procurement, urban pollinators programs, community gardening education, and support for other efforts to grow food on privately owned lands. Urban agriculture promotes social equity, and food security, in communities by providing opportunities for increased access to fresh, healthy and local food, recreational and culturally enriching activities, increased environmental stewardship, and knowledge of local food systems. Benefits of urban agriculture include, but are not limited: • improving access to fresh local produce; • helping to address food security issues; SUS 05-23 June 5, 2023 Subject: Urban Farming Page 4 •creating a resilient local food system; •reducing urban heat island effect and greenhouse gases; •preserving and encouraging biodiversity; •adding aesthetics and potentially financial value to properties; and •increasing wellness, social connections, and awareness of healthy eating habits. An emerging trend in urban agriculture is edible landscaping, the practice of incorporating food-producing plants in the landscape, such as fruit and nut trees, vegetables, herbs, edible flowers and shrubs with berries that can be combined to create an attractive yet functional design. As indicated, there are many activities that can be considered urban agriculture. The next section of this report will focus on raising of animals and beekeeping, community gardens, and vertical gardens. 1.1. Raising of Animals and Beekeeping As noted above, the Ontario Ministry of Agriculture, Farms, and Rural Affairs (OMAFRA) defines urban agriculture to include animal husbandry, such as urban hens and beekeeping. Urban agriculture activities on private property can go beyond growing produce, and include the raising of hens for egg production, or beekeeping to make honey. The raising of livestock such as hens and bees, are regulated by various federal and provincial legislations. In Ontario, beekeeping is regulated by OMAFRA and the Ontario Bees Act (1990). It is subject to regulations which specify setback distances from residential, parkland or other public spaces when locating hives. Currently, the City defers to the provincial legislation to address beekeeping in the urban area. From an ecological perspective, the City has several programs to support pollinators in general, including pollinator gardens, plantings, and outreach. 1.2. Locations for Growing Food: Community Gardens There are many potential locations for growing food in the urban area. Urban farming locations such as ground level community gardens, rooftop community gardens, backyards, balconies, city parks, school yards, and hydro right of ways, all offer opportunities to grow food. As defined in the Draft City of Pickering Comprehensive Zoning By-law (2022) that is currently on the City’s website for public consultation/review, community gardens can be established on private land, or municipally-owned public land, and is a communal space provided for the sole use of the public to grow flowers, herbs, fruits or vegetables and other social activities associated with gardening, but does not include any processing or packaging, commercial sales, or the raising of livestock or animals including poultry. The City of Pickering’s Official Plan references community gardening in several chapters, demonstrating urban agriculture's alignment with the plan's objectives. In particular, a community garden is permitted in all land use designations except Key Natural Heritage and Hydrologic Features. SUS 05-23 June 5, 2023 Subject: Urban Farming Page 5 In 2022, Council adopted a Community Gardens Policy (ADM 240) to support opportunities for volunteer organizations to engage in urban agriculture on City owned/leased/licensed lands. Community garden projects provide the opportunity for numerous community and individual benefits, including but not limited to: • allows residents to grow fresh, healthy produce; • reduces family grocery bills; • creates pride and knowledge of where the organic produce came from; • increases local food security; • grows food for the local food bank; • promotes positive mental and physical health; • provides social engagement with family, friends, neighbours and fellow gardeners; • contributes to civic enrichment and beautification; and • provides a location where residents of all ages and cultures can come together to enhance a space in their community. As part of the development of Pickering’s Community Garden Policy, staff detailed the criteria that should be considered when siting community gardens: • current use and future plans for the space; • neighbourhood impact; • accessibility; • safety; • soil test results; • maximum number of garden plots; • access to water; • accessible parking; and • consultation with residents whose homes surround the site (if applicable). Other considerations includes sunlight exposure, signage and security to reduce theft, storage area or shed, and type of plots (raised, in-ground). 1.2.1 Community Gardens on Private Property A community garden is permitted in all land use zones, except Key Natural Heritage features, and does not require planning approval. Buildings and structures to support growing vegetables and fruits are permitted in the rear yard. They are required to be appropriately setback from the property lot line to minimize the grading and drainage concerns. A building permit is not required for garden-raised beds/boxes, and buildings less than 10 square metres in area. Rooftop community gardens are another form of urban agriculture whereby a building uses its rooftop space to grow crops. Rooftop community gardens are often used as amenity spaces for recreational use on top of tall residential buildings. For example, in the City Centre Area, a rooftop community vegetable garden is proposed on top of the building podium of the Universal City Development Phases 4 and 5, (locate north of Celebration Drive, between Pine Creek and Sandy Beach Road). SUS 05-23 June 5, 2023 Subject: Urban Farming Page 6 For multi residential development, where space is limited, builders may incorporate community gardens into their residential landscape plan and green roof plan. For example, in the Daniels Corporation development along Kingston Road, east of Valley Farm Road, they continued their strong commitment to urban agriculture in real estate development and constructed a greenhouse building, allotment gardens, edible gardens, and balcony planter boxes for residents. In recent years, City staff also learned about other examples of community garden projects on private property including: a place of worship that installed raised beds to support their members and the local food bank, a high school with raised beds that are maintained by the students, and a condo corporation that started a small community garden on their property land to support the needs of their residents. Recently, through the City’s Community Grant program, the well-established not-for-profit group called ‘We Grow Food’ was awarded $3,000.00 to work with a neighbourhood to develop a community garden. We Grow Food focuses their efforts on various areas such as not-for-profit housing, and integrating neighbourhood building and outreach into their program delivery. Their economic, operational, and logistical support for gardening opportunities on private land is beneficial to these communities. 1.3. Community Gardens on City Managed Lands The City recognizes community gardening as a means of providing active and social opportunities to enhance health and well-being, and reduce food insecurity. In December 2022, City Council adopted a Community Garden Policy (ADM 240) to establish guidelines for the development and operation of community gardens on municipally owned lands. This policy articulates the role of the City and that of the community garden group, and provides a program framework to promote equal access and transparency. The policy also outlines criteria to choose suitable sites (as listed in Section 1.2). Due to the many requirements of community gardens, effective implementation benefits from advanced planning. With the update to the 2017 Recreation & Parks Master Plan, the City will be able to proactively consider these installation requirements when planning future parks and program space. There are currently two municipally operated community gardens. Valley Plentiful Community Garden (VPCG) that is located at the north end of Diana Princess of Wales Park. The site is coordinated by the Valley Plentiful Community Garden Committee. Plots are rented to Pickering resident applicants on a yearly basis for the purpose of growing produce for personal use. A number of plots have also been dedicated to serve the needs of the local food bank and are maintained by volunteers. In 2022, 747 kg (1,647 lbs.) of fresh produce was donated to the food bank. Staff are currently exploring opportunities to increase the number of raised garden plots, and creating an accessible parking lot along Kingston Road, with Hydro One and Regional Planning staff, to serve the needs of VPCG. In addition, staff are reviewing opportunities to create a community garden within the future development of the hydro lands between Kingston Road and Finch Avenue (directly north of VPCG). SUS 05-23 June 5, 2023 Subject: Urban Farming Page 7 Another garden site is located at the George Ashe Library & Community Centre. The four raised beds (twelve plots) are operated as part of Community Services Department ‘55+ Plot to Plate’ community garden program that residents can apply for annually to participate. Two additional ground plots are maintained by volunteers with a portion of the harvested produce being donated to the local food bank. In discussion about this report, staff were asked to re-examine the municipal parks to determine the feasibility of installing a small community garden. Currently, existing parks do not possess various characteristics needed to successfully support a community garden; and funds were not allocated in the 2023 Budget to develop a community garden. To further this request, staff propose: • to investigate and review costs e.g., water servicing, fencing, raised beds, shed, etc., to develop a community garden(s); • reassess park sites; and • garner interest from community groups. Based on this information, staff will be able to make a recommendation that can be brought forward to Council for consideration through the urban farming status update report in Q1 2024, and as part of the 2024 Budget review process. 1.4. Vertical Farming Method According to OMAFRA, vertical farming is another method of growing produce in the City, as it is very spatially efficient, uses either hydroponic, aeroponic, or geoponic techniques to grow crops, using vertical height and/or stacked layers. Several vertical agriculture models are available, from patio gardens, warehouses with stacked trays, and greenhouses that produce food. Indoor vertical farming is often a more commercial form of urban agriculture, uses less water and space, and increases productivity through the year, rather than being tied to a specific season. Vertical farming is permitted on private property, and includes the growing of food on balconies, porches, and in the front and backyard. Similar to community gardens, buildings and structures to support the growing of vegetables and fruits vertically are subject to accessory building structures zoning requirements (located in the rear and typically a metre from property lines to allow for natural drainage and to minimize visual impact to the adjacent property). A building permit is not required for vertical garden buildings and structures less than 10 square metres in area. 2. Examples of City of Pickering Support for Urban Agriculture Activities Urban agriculture activity in Pickering has been growing steadily. The City enables this by including supportive planning policies and zoning provisions that encourage urban agriculture, such as edible landscaping and community gardens in all land use categories and zones. SUS 05-23 June 5, 2023 Subject: Urban Farming Page 8 2.1. Planning and Zoning The City's Official Plan references community gardening in several chapters, demonstrating urban agriculture's alignment with the plan's objectives. In particular, farmers’ markets and community gardens are permitted in all land use designations except Key Natural Heritage and Hydrologic Features. From a Municipal Zoning By-law perspective, growing plants, shrubs and vines are considered landscaping, and are permitted in all zones. Buildings and structures to support food growing, such as raised garden beds, must adhere to applicable setback requirements to minimize adverse impacts, such as grading and drainage to the adjacent property. To add more clarity, staff have added a definition and zoning provisions for community gardens in the new draft Comprehensive Zoning By-law. 2.2. Corporate Grants The City’s Community Grant Policy and Program supports a variety of positive community initiatives. The City has provided grants to groups such as Valley Plentiful Community Garden, and We Grow Food, to implement urban agriculture initiatives. The City’s Environmental School Grant offers financial support to school boards to help enable schools in Pickering to implement activities that contribute to a healthy environment. The grant has funded raised vegetable garden beds, made of recycled materials, in order to educate students and the wider community on the planting process and the importance of growing local food, as well as indoor aeroponic growing towers for students to grow herbs, vegetables, and plants in the school. 2.3. Providing access to fresh, locally grown food Since 2016, the City has been hosting the award-winning City Centre Farmers’ Market through which the City provides access to locally grown fresh produce as well as supports local small businesses. In 2020, due to COVID-19, a virtual Farmers’ Market component was added to help connect residents to a variety of local farmers and vendors who sold produce, meats, baked goods, honeys and preserves, prepared meals, and more. In 2022, the in-person market ran for 17 weeks, with approximately 2,600 visitors, supporting upwards of 25 vendors. 2.4. Providing awareness through events, education, and workshops The City coordinates annual in-person and virtual educational workshops and webinars to increase awareness about the benefits of growing food and teach residents how to grow food, regardless of the size of their space, e.g., plot gardens, container and balcony gardening. In recent years, workshops have focused on topics including: How to Plan a Successful Garden, Composting at Home, Sustainable Gardening, Square Foot Gardening, Gardening in a new Subdivision, and Gardening for Climate Change. 2.5. Sustainable land use planning for new development For new residential development, where feasible, staff work collaboratively with the builders to encourage community gardens on private lands. Currently, for all new multi SUS 05-23 June 5, 2023 Subject: Urban Farming Page 9 residential and mid to high rise development, staff are requesting that the builder includes a dedicated community garden area on the proposed landscape plans or green roof plans. 2.6. Incorporate urban agriculture initiatives in future corporate studies and projects As part of the future City Official Plan update, staff will add policies to support urban agriculture that are consistent with the new Region of Durham Official Plan. The new draft consolidated Zoning By-law currently includes definitions of amenity areas, that include rooftop gardens, community gardens, open landscaped areas, and accessory structures such as a garden trellis. Recognizing the emerging trend in commercial growing of plants indoors (vertical farming), the draft By-law also includes a definition for Cannabis Cultivation, which means the growing of cannabis, either within a wholly enclosed building or structure, or in an open air setting, for medical or recreational purposes, subject to regulations under the Cannabis Act (Canada), as amended, in the Employment Zones. As part of the 2017 Recreation & Parks Master Plan update, staff will be amending the community garden section to further support and proactively plan for urban agriculture including, community garden initiatives. Staff are working collaboratively with the Region of Durham on the Durham Meadoway Visioning Study, a proposed pedestrian, cycling, and linear park trail system that will transverse Pickering in three locations, and end at the City of Oshawa limits. Staff have provided comments in support of a raised community garden connection within the hydro corridor right of way. 3. Review of Municipal Best Practices for Encouraging and Promoting Urban Agriculture Municipalities are in a unique position to plan for and support development projects that incorporate local urban agriculture, and to integrate direction for urban agriculture into a broad policy framework. There are many economic, social, and environmental benefits attributed to urban agriculture. Thus, in addition to those actions already being done by the City of Pickering, a scan identified some additional practices by other municipalities including: • Developing a Municipal Urban Agriculture Strategy (UAS), which is a strategic document that helps identify the municipality’s role in supporting corporate and community efforts to increase urban-scale food production. Although the City of Pickering does not have a UAS, staff are undertaking many of the actionable items outlined in others strategies, such as: Educate people and raise awareness about urban agriculture, and encourage its practice by residents and communities; Increase agricultural production within city limits and support commercial urban agriculture; Encourage resilient and ecological urban agriculture (adapted from the City of Mississauga and Toronto UAS). SUS 05-23 June 5, 2023 Subject: Urban Farming Page 10 • Providing a clear definition of urban agriculture, zoning permissions around the various activities of urban farming, including for example, the sale of produce and building permit requirements for greenhouse construction. • Removing potential zoning barriers to allow industries to grow and cultivate plants for non-medical purposes, on a commercial-scale, and within controlled indoor environments. In October 2022, the City of Mississauga initiated a Zoning By-law Amendment to permit and regulate industries that grow and cultivate plants as a part of their manufacturing process, in Employment Zones. Allowing plant-manufacturing in urban areas has been a rising trend. Mississauga staff noted that they have been receiving an increasing number of inquiries for industries seeking to incorporate the growing and cultivating of plants (i.e., lettuce, kale, tomatoes, etc.) in controlled environments, and this illustrates a connection to vertical farming initiatives. • Including a voluntary performance measure into green standards that encourages urban agriculture in new development. From a sustainability perspective, a few municipalities with green standards have added a voluntary measure that promotes community gardens, rooftop gardens or spaces to support farmer’s markets. In other examples, the voluntary measure encourages the builder to commit a minimum percentage of space for food production. • Dedicating a webpage for urban agriculture, including with community garden information. Staff used the information that was gathered about best practices to help inform future actions that can be taken to support urban agriculture. 4. Further Support for Urban Farming (Urban Agriculture) Initiatives in the City A resilient food system is important to the city, and urban agriculture continues to be an important component through its benefits to the economy, community, and environmental sustainability. In consultation with city staff from various departments, the following are short-term actions that staff recommend be undertaken to further support urban farming/urban agriculture in the next six months: Short-term Actions 1. Create an online urban farming/agriculture survey to examine the need for more education, programs, funding opportunities, and project site selections. This will assist in expanding educational workshop/webinar offerings, and to understand the benefits and barriers to urban agriculture. 2. Update the City of Pickering website to increase visibility and promotion of urban agriculture. 3. Continue to promote urban agriculture and local food within the community. 4. Develop a ‘community garden toolkit’ for private land owners to share information and resources. SUS 05-23 June 5, 2023 Subject: Urban Farming Page 11 5. Initiate an urban agriculture focused meeting with members of the building community to discuss challenges and opportunities on site. 6. Continue encouraging builders to incorporate community and vegetative roof gardens in new development. 7. Explore smaller community garden opportunities in existing parks: determine the costs associated to establish: and report back prior to the 2024 budgetary review period. 8. Research interim planning mechanisms to support onsite urban agriculture through the development approval process. 9. Continue to examine official plan policies and zoning opportunities to support vertical farming or plant-based manufacturing in the new City Comprehensive Zoning By-law. Long-term Actions 1. Research other means to promote or offer support for urban agriculture including, community garden development on private property e.g. hydro corridors, conservation land, Region of Durham, places of worship, etc. 2. Explore the cost and benefits of retaining services to assist with the development of an Urban Farming (Urban Agriculture Strategy). 3. Consider including draft performance criteria (supporting urban agriculture) within the Integrated Sustainable Design Standards during the next review cycle for this standard. Urban farming increases access to healthy, affordable, fresh produce and provides communities with opportunities to learn about nutrition and growing food. To continue to foster Pickering’s sustainable urban agriculture initiatives, staff requests Council approval to initiate work on the above noted actions, and that an update is provided to Council on the additional actions that have been taken to further this important sustainability matter in the first quarter of 2024. Attachment: 1. Council Resolution #100/23 Prepared By: SUS 05-23 June 5, 2023 Subject: Urban Farming Page 12 Original Signed By Lalita Paray, MCIP, RPP Senior Planner, Sustainability Original Signed By Chantal Whitaker, BESc (Hons), CSP-P Manager, Sustainability & Strategic Environmental Initiatives Approved/Endorsed By: Original Signed By Catherine Rose, MCIP, RPP Chief Planner Original Signed By Kyle Bentley, P. Eng. Director, City Development & CBO LP:ld Recommended for the consideration of Pickering City Council Marisa Carpino, M.A. Chief Administrative Officer Original Signed By Attachment #1 to Report SUS 05-23Legislative Services Division Clerk’s Office Directive Memorandum March 15, 2023 To: Paul Bigioni Director, Corporate Services & City Solicitor Kyle Bentley Director, City Development & CBO From: Susan Cassel City Clerk Subject: Direction as per Minutes of the Meeting of City Council held on February 27, 2023 Urban Farming Council Decision Resolution #100/23 WHEREAS, The Corporation of the City of Pickering promotes itself as becoming one of the most sustainable cities in Canada; And Whereas, rising inflation and grocery prices are affecting the food choices of families making healthy food inaccessible; And Whereas, poor nutrition ultimately affects one’s overall health putting a burden on our healthcare system; And Whereas, supplying families with nutritious eggs raised without hormones and antibiotics at a low cost; And Whereas, chickens eat grass clippings and food scraps thereby reducing waste; And Whereas, looking after hens makes staying at home enjoyable and helps educate children about chicken farming; Now therefore be it resolved, that the Council of The Corporation of the City of Pickering directs through the Office of the CAO to consult with stakeholders regarding the implementation of an Urban Farming pilot project for the enjoyment of Urban backyard egg production only and Urban Farming to include Vertical Farming, and Urban Farming to include Vertical Farming, and that staff report back to Council no later than the end of Q2. Please take any action deemed necessary. Susan Cassel Copy: (Acting) Manager, Municipal Law Enforcement Services Manager, Sustainability & Strategic Environmental Initiatives Chief Administrative Officer