Edmonton (Alta.) - 1963 - General plan for the city of Edmonton, part IV, chapter X (1963-09)

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General plan for the city of Edmonton. Planning D

art.

IV "Special, Pláñnliig and

Sustainable Development

LIBRARY The City of Edmonton

CITY PLANNING DEPARTMENT

GENERAL PLAN FOR THE CITY OF EDMONTON

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C040 5992 n.d. Ac. 172013030 GENERAL PLAN FOR THE CITY OF EDMONTON: PART IV: SPECIAL PLANNING AND DESIGN STUDIES: CHAPTER X: DOWNTOWN EDMONTON

Part IV - Special Planning and Design Studies Chapter X

DATE DUE

BORROWER'S NAME

Downtown Edmonton

C040 5992 n.d. Ac. 172013030 GENERAL PLAN FOR THE CITY OF EDMONTON: PART IV: SPECIAL PLANNING AND DESIGN STUDIES: CHAPTER X: DOWNTOWN EDMONTON

THE CITY OF EDMONTON CITY PLANNING DEPARTMENT

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EDMONTON'S CENTRAL AREA PLAN

This chapter of the General Plan, although less lengthy than several others, is in many respects the most important, for it deals with the city's very heart. Downtown is in part a compression of many activities found elsewhere at lower densities throughout the metropolitan area, but in the concentration of these residential, commercial, retail, service and transportation components a new environment with unique values and characteristics is created.

Downtown, it has been said, is the symbol of the city. It contains the highest and generally the costliest buildings. Land Values are the most extreme. Transportation facilities serving it represent the greatest public investment. Offices and stores are larger, more specialized and more varied than anywhere else in the city. It is customer, merchant, salesman, banker, broker, doctor, lawyer, accountant, consultant, client. It is administration, government, recreation, protection. It is wealth; it is power. The greater the development, the more this is so, for with increasing concentration downtown becomes more and more attractive as an environment in which to conduct the city's major business.

Downtown is also the most sensitive of all areas in the city to the forces of obsolescence, blight and decay. Commercial pressures here are intense; competition is keen. Location is all-important -- location with respect to adjoining activities and to transportation facilities. A hundred feet of distance can mean the difference between commercial success and financial difficulty.

The values of a downtown property are affected primarily by two factors; the immediate environment (the character of one's neighbors) and the accessibility (by foot, auto and public transit). This chapter of the General Plan deals with both. Transportation, the lifeblood of downtown, has been examined in detail using employment, land use and other data developed for the Metropolitan Transportation Study and other research programs. The patterns recommended fit within the framework of that complex regional study. The various functions of the central area have been examined and analyzed; recommendations are aimed at strengthening each of these. Finally, illustrative plans and sketches indicate the sort of benefit to merchant and customer alike which can result from an adherence to the principles and goals set forth in this chapter.

This chapter is the result of a great deal of work by many highly qualified persons both within the city service and in consultation with the city. It was prepared in close collaboration with many representatives of major downtown interests (including all major department stores) whose co-operation was unstinting and generous. So, too, was the encouragement and assistance from the Chamber of Commerce, Community Planning Association and other organized groups.

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Both the public and the private investment in downtown is extremely high, and recommendations affecting these values should not be made without appropriate expert study. Among those firms and individuals to whom the City has turned for assistance from time to time are the Alberta Association of Architects, Professor J. J. Bakker, Barton-Aschman Associates Inc., Bell McCulloch Spotowski and Associates, Canadian Bechtel Ltd., Dr. Hu Harries, T. Lamb McManus and Associates Ltd., Professor James A. Murray, I.M. Pei & Associates, Mr. John U. Rule, Mr. H. Gilman Smith, Larry Smith & Company, Stanford Research Institute, K.C. Stanley & Company, Stanley Grimble Roblin Ltd., Professor Gordon Stephenson, Traffic Research Corporation, Webb & Knapp (Canada) Ltd., Mr. Julian Whittlesey and others. All have contributed their specialized skills to the development of the concepts and the plans which are to follow. Within the City service, senior officials of the Planning, Engineering (particularly Traffic and Roadways Design Divisions) and Parks & Recreation Departments have made heavy contributions. Perhaps the heaviest single assignment was undertaken by Mr. D.L. MacDonald, who acted as general manager of this study and who, with his senior research assistant Mr. D.R. Walker correlated this work with the Metropolitan Transporation Study.

G.C. Hamilton, Commissioner.

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TABLE OF CONTENTS

EDMONTON CENTRAL AREA PLAN - General Statement

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CREDITS

I.

THE PAST AND PRESENT

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II. ECONOMIC AND PHYSICAL PROSPECTS

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III. OVERALL GOALS FOR CENTRAL EDMONTON

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IV. THE CENTRAL AREA PLAN

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Requirements Principles Circulation, Parking and Public Transit Land-Use

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AREA, DISTRICT AND FACILITY PLANS The Retail-Office Centre The Civic Centre The City Centre Housing Area The Pedestrian In Downtown Edmonton Rapid Transit

VI.

DESIGN OBJECTIVES General Character Gateway Areas River Bluff Lighting Signs Street Furniture

VII. MEANS OF PLAN ACHIEVEMENT

Public and Private Financing Public Policies Planning Legislation Further Technical Studies

TABLE OF REFERENCES

21 23 33 55

65 66 88 94 105 113

115 116 116 117 117 118 119

121 122 123 123 124

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SECTION I on.

THE PAST AND PRESENT

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(A)

The Establishment of Downtown Edmonton

The North Saskatchewan River valley and the property known as the Hudson's Bay Reserve, have exercised considerable influence on the location and the development of downtown Edmonton. The river valley, with its steeply sloping sides, has barred the southerly expansion of downtown. As an access route to downtown from the south, it creates physical problems of river crossings and steep, sometimes unstable road-grades. The river valley offers dramatic views from commanding sites on the edge of the escarpment in striking relief from the flat prairie landscape. The Hudson's Bay Reserve, of approximately 3,000 acres adjacent to Fort Edmonton has had far-reaching effects since 1870.

1870 was a significant year for Edmonton. That year, the Canadian Government took over the administration of Rupert's Land and in 1871 claims for land were permitted, outside the Hudson's Bay Reserve. The first claim,

by Reverend George McDougall, was located on the site of the present McDougall Church. Eleven further claims were granted stretching along the bank of the river valley, eastward. It was this stretch of properties which became Edmonton's first downtown area or business district.

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Land Booms and Early Growth

Land booms with sky-rocketing values, followed by subsequent collapses, have also played a part in the growth and character of the Central Business District. The first such boom occurred about 1880 when it appeared likely that the Canadian Pacific Railway's main line would pass through Edmonton.

Eastern speculators, lured by the possibilities, purchased many of the lots. This boom collapsed with the routing of the C.P.R. through Calgary.

A series of events led to Edmonton's rapid population expansion and subsequent land boom that followed the turn of the century. The coming of the railways, the establishment of Edmonton as the capital in 1905, and amalgamation with Strathcona across the river saw the city's population jump from ten to 70 thousand within a decade. Real estate values mushroomed.

Much of the land sold at this time was included in the Hudson's Bay Reserve, 3,000 acres extending from the river north to 118th Avenue, between

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101 Street and 121 Street. Demand for lots was so great that parcels were being sold beyond the reserve. As a result the Company offered a number of lots north of 108th Avenue for sale. The sale, scheduled for Tuesday May 13, created tremendous excitement. To cope with the demand, a public lottery was held on Monday, May 12, for 1,500 tickets, good for four lots each, to determine who should receive the choice lots. A line-up of 1,500 persons was already formed early Monday morning waiting for the 2:00 P.M. draw. Places in the line-up sold for as much as $1,000, while tickets for the lots sold for much more. The excitement over this sale diminished within a few weeks.

Even a paved thoroughfare (now Kingsway Avenue) through the reserve could not reawaken interest in the area. With the large amount of money taken out of circulation by this sale, real estate interest fell off, and by 1914 this boom collapsed.

The period 1900 to 1914 saw the consolidation of the downtown area, and the erection of many of the buildings which have established a measure of character for the district. McKay Avenue school was built in 1902. Five years later the Post Office was erected. 1911 was the beginning of an exceptional period of construction with the erection of the Tegler building, Edmonton's first large office building, and the construction of the First Presbyterian Church. The first large warehouse was built in 1912, and is now known as the Northern Hardware building. Edmonton's second major office structure, the McLeod Building was erected in 1913. 1913 was also the year the C.P.R. building was constructed, the castle-like Macdonald Hotel came into being, and Edmonton's Civic Block (now the City Police headquarters) was built.

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Post World War I and Depression Years

In the years to follow, many of the purchasers were unable to maintain payments for property or for taxes, and the property reverted to the city for back taxes. The commercial area at this time was mainly on 97th Street, 101st Street and Jasper Avenue. Most of the area in between remained vacant.

The far-sighted City Council of 1912 envisioned this area as excellent for a city centre, and passed a resolution stopping the sale of city-owned land within this area. It appeared a costly venture at that time to purchase all the individually owned properties, but with the collapse of the land boom in 1914, many of these properties reverted to the city.

From 1914 through the late 'thirties there was little development or expansion in downtown Edmonton. Boundaries of the area were established by the coming of the railways. The Canadian Northern (now Canadian National) Railway line to Edmonton cut off northern expansion, and in 1913, the Canadian Pacific Railway line established a western boundary. With the 185 foot high river bank on the south, the central business district became broadly outlined.

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Within this area the district evolved into its various business zones.

Warehouses grew up to the north, in close proximity to the railway lines and spurs. Major department stores and specialty shops were built mainly on 97th Street, Jasper Avenue and 101st Street, and the financial district was established on Jasper Avenue between 100th Street and 101st Street.

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While this period saw little renewal of downtown facilities, there were a number of structures added which have contributed to the appearance and to the centralization of facilities within this area. McDougall Church was erected in 1917, the City Market in 1918, and the Journal Building followed two years later. The Court House was built in 1922. The building of Woodward's store in 1926 added to Edmonton's comprehensive downtown shopping complex.

During the depression years development was stable and slow. The Corona Hotel was rebuilt in 1935 followed in 1938 by the construction of handsome new department stores for the Hudson's Bay Company and Eaton's.

(D)

Post World War II

Edmonton's third major land boom was sparked by the 1947 discovery of oil in the Leduc area. This discovery led to the establishment of new multimillion dollar industries and the creation of new residential suburbs. The attendant population explosion required the expansion and, in some cases, the creation of new access routes to and through downtown Edmonton. Here the river valley, long an avenue of transportation, was exploited to provide new arterial thoroughfares to speed the movement of north-south and east-west traffic.

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The downtown area has had an upward renewal of commercial properties.

The main intersection of Jasper Avenue and 101st Street has been dramatically altered in character by the addition of two new multi-storey buildings, and a third new structure on that corner will soon be underway. The trend toward western expansion is shown by the addition of new office buildings, motor hotels and high-rise apartments. These are encroaching in piecemeal fashion into the once predominantly residential areas to the south and the west of the downtown core. Meanwhile, there has been little renewal of the northern and eastern portions of downtown Edmonton and these portions are being left as areas of discard, containing parking lots and aging structures.

The enlargement of Downtown, the rapid expansion of the metropolitan area, together with increased car ownerships attendant to a rising standard of living, continues to sharpen the congestion peaks into and around the central area. Peak-hour travel is becoming increasingly more uncomfortable

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and tedious for both driver and transit rider. Sidewalk congestion and delays at crossings continue to increase, and the extended walking and driving distances due to the changing character of downtown is making it a less desirable area in which to work, do business and find entertainment.

The form and pattern of the downtown area is continually being shaped by innumerable forces. An orderly plan is an urgent necessity to channel growth into a related whole - each part playing a meaningful role in contributing towards a strong, healthy heart of an expanding metropolis.

Special Note: The reader who wishes additional information on the historical background of downtown Edmonton is referred to Chapter I This volume is one "Edmonton - History, Geography, Region". of the City of Edmonton Draft General Plan series.

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Early downtown Edmonton - Jasper Avenue looking east from 101st Street (above) and 101st Street looking north from Jasper Avenue (below) (photos courtesy of McDermid Studios Ltd.)

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Among the major buildings erected from 1900 - 1914 which set the character of Edmonton's business district were the Post Office (above) and the McLeod Building (below)

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The late 1930's saw increased shopping facilities for Edmonton with the construction of new stores for Eaton's of Canada, and The Hudson's Bay Company

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Two dramatic additions to the 101st Street and Jasper Avenue intersection the new Empire Block and the new Bank of Montreal.

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"Edmonton -- Past and Present."

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Peak hour traffic, both in the heart of downtown and in the access routes make travel uncomfortable for drivers and transit riders

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SECTION II

ECONOMIC AND PHYSICAL PROSPECTS

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SECTION II ECONOMIC AND PHYSICAL PROSPECTS

Economic factors and physical setting are the foundation on which central Edmonton must grow and develop. This city is endowed with substantail potentials for growth and with many opportunities for development.

Market Potentials

It has not been possible within the scope of this study to conduct a definitive analysis of the market for all of the major types of central area development; this is something that should yet be done. However, substantial studies of the regional and metropolitan economy have been completed which can serve as a general base on which to project central area growth.* In addition, major work has been done in projecting demands for office space.**

Regional and Metropolitan Growth

The prospect of regional and metropolitan growth is very bright. Some of the more significant regional and metropolitan factors as reported in these studies are: - Between 1941 and 1961 the population of Alberta grew by 677 to 1,331,944.

- During the same period, Edmonton's population almost trebled, from 93,924 to 276,018.

- Edmonton's current (1961) growth is at a rate of over 807 per decade.

- Edmonton's (and the Province's) economy has been establishing a broader base; as late as 1949 agriculture accounted for over half of the annaul production of the Province. Today, construction, mining and manufacturing constitute about three-quarters of the Province's productivity.

- From 1950 to 1960 the Edmonton trading area population increased from 520,000 to 750,000; gross income from $260 million to $800 million.

- The volume of wholesale trade in Edmonton increased by 12% from 1956 to 1960, to over $213 million annually.

- Sixty-one new industries were established in Edmonton between 1959 and 1961. *

**

Reference Items 1 & 2 Reference Item 3

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- More than 100 new industrial firms have located in the Edmonton area in the past decade, increasing manufacturing value by more than $300 million per year.

The per capita value of cohmiodity production in Alberta has increased and has maintained a superior level from $829 in 1950, to $1182 in 1955, and to over $1,200 in 1960.

These and related facts have been interpreted and projected to indicate that the population of the Edmonton Metropolitan Area may be expected to grow to over 650,000 by 1980.* This would be a virtual doubling of population and of economic activity in the next 17 years. This growth has been further translated into projections that indicate a growth of over 45,000 in the total numbers of employees to be located in the Central Area by 1980.

Present and Projected Employment and Population in Central Edmonton**

POPULATION DWELLING UNITS

1961 8,907 4,159

1980 13,700 5,400

6,177

12,000

11,794 2,535

24,800 6,000

13,275 6,185 8,141

21,400 15,000 9,200

48,107

88,400

11 EMPLOYMENT Primary Commercial (Retail Shopping) Office Secondary Commercial (Commercial Retail) General Commercial Government Office Other Employment Total

In addition to increases in employment, it is expected that the central area and nearby districts will increase substantially. Direct increases for the central area are projected at a modest 1,700 persons. (This may be low, judging from the nature of recent apartment developments.) However, increases projected for nearby areas are substantial,AAA and when realized, will provide sound reasons for new development and will support other central area functions *Reference Item 1 **MET'S zones 0010 to 0070, plus approximately 1/3 of zone 0310, k of zone 0210, and 1/8 of zone 0230 are included in computing the population and dwelling units, and to compute the employment, zones 0010 to 0070 plus 0310, 0210 and 0230 are included 1007. Source: METS "Preliminary Projection: 1980" November 1962. See Reference Item 1.

"--Note, for example, zone 1310, from about 109th to 113th Street, the river to 104th Avenue, where the increase is projected at over 6400 persons.

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Some important factors that suggest the potential for replacement of existing structures in central Edmonton are: - Amost half (47.57) of the office space in central Edmonton was built prior to 1940 (in most instances before 1930). Much of this space is lacking desirable facilities by today's standards (being located in low, walk-up structures, lacking modern elevators, modern air conditioning and decor, etc.). Although relatively little of this property is deteriorated, much of it is obsolete and could be readily replaced.

- Substantial portions of the Central Area are occupied by dwellings originally intended for single family use. With the spread of commercial and apartment construction, these properties are no longer attractive for their original purpose and are ripe for replacement. The land they occupy offers a major development and improvement opportunity.

- Of the Area (exclusive of streets) located within central Edmonton north and west of Bellamy Hill Road, less that 50 percent is judged to be occupied by permanent buildings (i.e. buildings that would probably not be torn down to make way for new development).

A major factor inhibiting new development and forcing it into lessthan-desirable locations is the pattern of small parcel ownerships. This makes the acquisition and assembly of lands for new commercial and apartment buildings difficult, often thwarting attempts to create new building sites of adequate size and in the most desirable locations (from both an individual and community point of view).

Yet, with the redevelopment opportunities available, the problem of land assembly is basically an artificial one: with concerted private and public action (as proposed in the Civic Centre Plan) it could be overcome.

On the assumption that such action will be forthcoming, it can be said that central Edmonton contains substantial opportunities for new development and improvement. It need not be static; it can move dramatically ahead.

Central Area Growth Effects With a combination of strong market and redevelopment potentials, the prospects for continued expansion and new development in central Edmonton are great. Some key observations from an economic study of this area are:* 1. "(The) future potential demand for office accommodations is large.

Projected demand shows that office accommodation requirements in the next 10 years in Edmonton will double, and will range during

* Reference Item 3

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the next 20 years to between 5 and 7 million feet in total requirement...." (compared to about 2.5 million square feet in 1961) 2."Estimates of annual increments of additional office space required, including replacements in Edmonton, run between 162,500 and 226,800 square feet, with an average of 195,000 square feet per year as conservative estimate." there is... .much evidence to show that office space is in 3." demand, where better accommodation is offered and even at higher rentals. This is particularly truein the "Professional" and "Commercial" types of tenants."

4. "Edmonton business firms are upgrading their standards of what they will accept in modern office accoumiodation. ....The demand is increasing for modular design for larger office areas, for modern paneling materials and good lighting, and for modern self-operating elevators. (emphasis supplied.)

5. ".... There has been no new hotel construction in the city for some years, with the exception of the addition to the Macdonald Hotel....

There is an increasing demand....for more hotel accommodation....we have determined that the demand for hotel accommodation....would be far in excess of that now being provided."

Floor areas in Millions of square feet - existing office space, total 2.4 - space to be replaced .75 - space to be added min.

2.5 max.

4.5 - total space to be built min.

3.25 max.

5.25

Although the potential markets for housing, retail, entertainment, hotel and related commercial space have not been quantified, there is reason to believe that substantial amounts of new space could be profitably built in central Edmonton for these activities.

If office space and employment increase as projected, they will create the need and support that such activities require. If given the opportunity, this need and support will, in turn, help support the construction of additional new housing, restaurants, hotels and other facilities that can make central Edmonton truly vital. Thus it will virtually self-generatebusiness attraction and new construction.

* Reference Item 3

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On the assumption that programs will be undertaken to provide attractive, e... suitable sites for new construction (as in the Civic Centre Plan), that good access to the Central Area will be maintained through continued street and transit improvements, and that a variety of environmental improvements will be made, a substantial growth of retail and related service activities has been projected for central Edmonton.*

Although assumptions and projections need to be tested in more definitive studies, the large scale of the potential in central Edmonton seems clear. It has, therefore, been confidently used as a basis for development of the plans contained herein.

Special Note: The reader who wishes additional information on the prospects of this region is referred to Chapter II - "Effect of Resources Development on Growth of Metropolitan Edmonton". This volume is one of the City of Edmonton Draft General Plan series.

* Reference Item 2

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SECTION III OVERALL GOALS FOR CENTRAL EDMONTON

The purpose of setting goals for the planning of downtown Edmonton, is to create a common ground for agreement and a basis for the preparation and implementation of the Plan. To achieve the purposes of this study, it is hoped that there will be acceptance and application of these goals by private as well as public decision-makers, because their use by public agencies alone will be inadequate.

(A) Communications Centre For A Vast Region

First of all, it must be recognized that the essential function of any central area -- and of central Edmonton -- is to serve as a centre for the exchange of ideas, goods, information and services. The prime function then, of central Edmonton, should be to serve as a focal point of communications tying together the various parts of the Edmonton area, the various parts of the Edmonton and northwest Canada region, and connecting this area and this region to the world.

(B) The Prime Functions of Downtown

In order for central Edmonton to serve as a centre of communications, it must be the administrative, financial, governmental, and business headquarters of the metropolitan area and of the region. Thus, it must contain facilities to serve these functions.

(C) Essential Related Facilities

To further facilitate its role as a centre of communications, and to take advantage of and to enhance the attraction of the area, it should also contain substantial entertainment, cultural, meeting, restaurant, hotel and other related facilities that can serve persons coming to the area and that can make a visit to the area more profitable, informative, and enjoyable.

(D) Distinctive Character of Downtown

Central Edmonton should be developed and to provide services and an environment any place but in a great regional centre. involved in the Edmonton region, a special

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to have a distinctive character that are not likely to be found Because of the great distances effort must be made to make

J central Edmonton impressive enough to attract travellers from distant areas.

It should be urbane, sophisticated, exciting, intensively developed, offering the greatest possible opportunities for obtaining personal services, merchandise, entertainment, and educational and cultural advantages. Central Edmonton should be an area of great contrast and variety; it should offer a sharp, rewarding, and stimulating contrast with the vast areas of wilderness and rural development around.

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The intensity, variety and pleasantness of development in central Edmonton should be such that it will not only attract people from throughout the region, but from other regions as well.

(E) Arrangement and Accessibility

The basic activities of downtown Edmonton should be grouped together in orderly fashion into compact areas so that they may better contribute to their own well-being and need for inter-communications and to benefit the downtown area as a whole. Such activity centres should be so arranged as to promote convenient movement of pedestrians, goods and vehicles. Downtown, as a whole, must be readily and conveniently accessible from the Greater Edmonton Area.

(F) Downtown As A Unique Symbol

Central Edmonton must be capable of serving as a worthy and attractive symbol of the city, of the metropolitan area, and of the great region of northwest Canada. As such, it must be attractively developed in terms of detailed building and site design as well as in terms of overall skyline and visual arrangement.

An important and essential element to be emphasized in the development of central Edmonton is its unique site overlooking the Saskatchewan River.

Central Edmonton must be developed to capitalize and to enhance this unique and invaluable asset.

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SECTION IV

THE CENTRAL AREA PLAN

Requirements Principles Circulation, Parking and Public Transit Land-Use

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SECTION IV THE CENTRAL AREA PLAN It has been stated that the overall objective is that central Edmonton serve as a great and vital focal point for all of the Edmonton Region providing a centre in which ideas, entertainment, goods, and services can be obtained and exchanged with efficiency and comfort.

It has also been observed that Edmonton and the Edmonton Region will grow ... will double in population and in economic vitality ... that this growth will support and require a doubling of employment and floor space in the Central Area.

With these as guides, it is then possible: 1. To make an estimate of the future employment, land requirements, and traffic conditions of central Edmonton.

2. To set forth principles that, if followed, will accommodate projected growth and help meet the desire and need for efficiency and attractiveness in central Edmonton.

3. To prepare general plans for the area which, with further refinement and detailing, can serve as the basis for zoning, land assembly, street traffic, parking and transit improvement, new building construction, and other community and private actions.

Requirements Employment estimates indicate that more than 85,000 persons will be working in central Edmonton by 1980. This is an increase of 80 percent over 1961.

These projections may be summarized as follows:

Type of Activity Commercial Primary Secondary Office General Government Office Public & Semi-public Industrial Light Heavy

CENTRAL AREA EMPLOYMENT PROJECTIONS * EDMONTON, 1961 - 1980 Employment Change 1961 1980 Number 6,177 2,535 11,794 13,275 6,185 5,478

12,000 6,000 24,800 21,400 15,000 6,600

5,800 3,500 13,000 8,100 8,800 1,100

95 138 110 61 143 21

2,291 372

2,000 500

-300 100

-13 30

It can be seen that the most dramatic increases in employment are expected in government office, secondary commercial and general office, with substantial growth occurring in primary and general commercial categories.

* Reference Item 2

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The growth indicated by these employment projections for central Edmonton will not occur automatically - deliberate action will be required to provide for it: 1. It is assumed that adequate capacity will be provided in streets and transit to maintain and improve ease of access to this area.

2. It is assumed that a variety of improvements in the urban environment will be made, including features to: - make pedestrian movement easier and more pleasant.

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- provide adequate and well located parking for patrons,customers and employees.

- provide attractive, pleasant settings for new building construction.

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3. It is assumed that a program of land assembly will be conducted-privately or with public aid -- providing new building sites large enough and properly located to meet the needs of new, modern construction.

4. It is assumed that the development of central Edmonton will follow sound principles for circulation, parking, grouping of activities, transit, and other features of good urban design.

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The amount and type of future employment in central Edmonton will be affected by the extent to which these facilities are provided. Growth in the area is inevitable. The Central Area is the logical and only site for much new development, but many desirable activities will have an option as to where they may settle, whether in outlying, scattered locations or, perhaps even in other cities.

The projected employment of 85,000 has been used as a basis for making this Central Area Plan. However, the principles and illustrative schemes provide--as they should--for growth well beyond 1980. Thus, if positive steps are taken as outlined above, there will be room for expansion of employment and economic activity beyond present expectations.

Based on projected employment figures it is estimated that a total of almost 7 million square feet of office space will be located in central Edmonton by 1980. In addition, the area may contain as much as 8.7 million square feet of commercial space. Although specific projections are lacking, it is assumed that hotel-motel space could be doubled. Space devoted to governmental activities is expected to increase by 1.3 mil.sq.ft. If good standards of environment are maintained, the Central Housing Area should experience continued, steady growth. Public developments, as the new coliseum and public library, will also contribute immeasurably to the overall vitality and attractiveness of the area.

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These, then, are the estimates, expectations and prospects of the future upon which the Central Area Plan is based.

Principles

It has been stated--and truly so--that form follows function. Thus, aircraft are shaped to meet the wind, and auditoria reflect seating and stage requirements.

A good city--and its parts--must also be designed to fit the functions they must serve. Edmonton's neighborhoods have been built to provide the quiet and safety required for family living. So too, Edmonton's Central Area should be developed to serve as a centre for communications--an area in which ideas, goods, talents and services can be exchanged easily, efficiently, and with maximum effectiveness- an area in which large numbers of personal face-to-face contacts can be readily and pleasantly made.

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There are six basic principles for the design of central Edmonton as an important centre of communications:

1. Access: Efficient, attractive access to central Edmonton should be maintained...

- from the whole of the Edmonton Metropolitan Area.

- from anywhere in the Edmonton Region.

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- from other regional centres.

To provide good access it is necessary to ...

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- give priority for the use of Central Area streets to traffic destined to or from that area.

- divert traffic not destined to the Central Area around it.

- provide good transit service to all important destinations within the area.

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- provide parking and other terminals within six to eight hundred feet of all major destinations within the area.

- provide efficient connections between approach routes and these terminals.

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"Efficient, attractive access to central Edmonton...

- from the whole of the Edmonton Metropolitan Area."

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"...- from anywhere in the Edmonton Region."

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1 "To provide good access it is necessary to ...

- divert ... traffic around the Central Area and aroun the Core."

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"... - provide good transit service to all important destinations ... within the Central Area and the Core."

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1 "To provide good access it is necessary to ...

- provide parking and other terminals within six to eight hundred feet of all major destinations within the area."

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_.0 - provide efficient connections between approach routes and these terminals."

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2. Circulation: Efficient, attractive circulation within the Central Area should be maintained ...

- to promote ease of movement (most importantly for pedestrians) and to encourage free face-to-face contact.

- secondly, for vehicles (transit, autos and trucks) - to permit easy, ready parking, pickup, and drop-off of passengers and goods delivery.

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To provide good internal circulation it is necessary to: - reduce through-traffic movements in the area to a minimum.

- provide special facilities for transit movement.

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- provide a fine network of special pedestrian facilities as free from traffic conflicts, as pleasantly designed, and weather protected as possible.

- maintain a high standard of street design, in terms of both efficiency and aesthetics.

3. Compactness: Major activities of the Central Area should be compactly arranged ...

- to facilitate transit and vehicular circulation between various parts and to permit development of workable plans for parking and major streets.

- to promote maximum ease of pedestrian movement between related functional buildings.

Compactness in central Edmonton will require: - the overall extent of Central Area functions be confined.

- major activities--such as the government centre, the civic centre and major retail and office functions--be arranged in compact groups.

4. Appropriate Development: Development in central Edmonton should be of a suitable type, and of proper design to serve Central Area activities ...

- office, major shopping, hotel, theater, convention, religious and meeting facilities, restaurants and others that can help the area serve its communications function.

27

11 ... and which can be designed to provide a desirable appearance in terms of plazas and views ... supporting special facilities for pedestrian movement, and weather-protected as possible."

28

LirIl -_ Lir II _

J LII

-

II

_

L

_

I _ developed on a large scale, promoting efficiency in the use of land, compactness in the location of related uses,.., supporting special facilities for parking, loading and pedestrian movement ... and which can be located and designed to provide a desirable appearance in terms of plazas, skyline and views.

5. Appearance and Symbolic Values:

La

Development in central Edmonton should be attractively designed to enhance the main features of the site ...

r_ II _

-

the exciting and satisfying views of the Saskatchewan River Valley from the Central Area.

-

the impressive views of the Central Area skyline that can be had from many parts of the City.

L i, r- II L 11

Obtaining an exciting, pleasant appearance requires attention to:

r- II

L il

- the creation and proper location of a number of selected "landmark" features ... tall buildings, plazas, statuary, and other specially designed features.

II

E

.

l

r- m I_ 11 1

[1

-

the maintenance of a wide variety in building and street design, architectural detail and relationheights, widths, forms, shapes' ships to other developments.

- high standards in the design of signs, street furniture, sidewalk and street pavements and other details of development.

6. Supporting Development:

L i1 r- I Li .

I [I

r- I

Areas around and within central Edmonton that are not needed for key Central Area functions should be developed with strong supporting activities ...

-

centrally oriented apartments, motels and special purpose (single occupancy) offices.

- subordinate to major activities in intensity of development

These are some of the more important principles that have been used in the development of The Central Area Plan.

29

L

T1

I

r--

"Efficient, attractive circulation within the Central Area should be maintained ..." t

ACCESS RING

.. to permit vehicles (transit, autos and trucks) easy, ready parking, pick-up, and drop-off of passengers and goods delivery."

"To provide good internal circulation it is necessary to ... - reduce through-traffic movements in the area to a minimum."

30

PARKING

"Major activities of the Central Area should be compactly arranged ... to permit development of workable plans for parking and major streets."

\

PEDESTRIAN

COURTS

"... and to promote maximum ease of pedestrian movement between related buildings."

31

lir

11 •

r.

•

1

"Major activities of the Central Area should be compactly arranged ... the overall extent of Central Area functions be confined."

C

WHOLE SALE

CIVIC CENTRE RETAIL CORE

Jielffit OFFICES

"

HOTELS

- and that major activities ... be arranged in compact groups."

32

CIRCULATION, PARKING AND TRANSIT

INTRODUCTION

As the focal point of activity for the metropolitan area and region, Central Edmonton must have a transportation system that will effectively and expeditiously move both people and vehicles.

To achieve such a system, maximum advantage should be taken of all available or attainable facilities such as surface streets, public transit, and Future traffic demands will require a balanced system which freeways. utilizes each of these facilities in the capacities for which they are best suited.

Upon this premise, the objective of this section of the study is to recommend a transportation system for Central Edmonton that will best satisfy 1980 traffic requirements.

The development of this system should include consideration of vehicular access, circulation, parking, service and emergency vehicle circulation, pedestrian movements, and public transit.

Background

Several agencies provided basic data for the appraisal of present and future traffic conditions in the Central Area.

The Metropolitan Edmonton Transportation Study (METS) furnished existing and future trip quantities and characteristics for the Central Area.

It also provided useful information concerning existing parking facilities and indicated the location of future major routes around the Central Area.

7

Employment projections used in the calculation and distribution of future parking needs were made by the City Planning Department.

Building access and service vehicle requirements were determined by field studies conducted by city personnel.

Representatives of several city departments participated in discussion during the development of the plan as their various areas of interest became involved.

In the eastern section of the Central Area, previous plans for the Civic Centre were recognized in evaluating quantities of future parking and the location of streets and parking concentrations.

Similar consideration was given to existing plans for the government area.

PRINCIPLES NMI

An essential element of the central area planning process is a statement of the principles which should guide the development of the area.

The following paragraphs summarize the important principles pertaining to access, circulation, transit, and parking for this area.

33

-

Access and Circulation 1.

Traffic not destined to the central area should be by-passed around the area.

2.

The central area street system should include facilities that will carry vehicles destined to the area around its edge to a point nearest final destinations (distributor system).

3.

Major access routes to the central and core areas should lead to the corners of the by-pass and distribution rings, these being the most efficient points of circulation and distribution.

4.

Vehicles should be carried as directly as possible to parking terminals (i.e., efficient connections between approach routes and terminals).

5.

Ideally, local service streets should only provide access to buildings, bus circulation, and access for emergency vehicles.

6.

Conflicts between vehicular and pedestrian circulation should be minimized.

7.

There should be three major categories of streets associated with the central area:

a:

- Crosstown By-pass Routes - high capacity expressways or arterial routes which by-pass the central area.

- Primary Access and Distributor Routes - major surface streets which ring the core area and provide connections between this ring and the by-pass system.

- Local Service Streets - all other central area streets that provide direct access to buildings, etc.

II

Transit 1.

All practical steps should be taken to encourage increased use of transit.

2.

Transit should strengthen its position in the important central area of the city.

This may involve initially such changes and improvements as: - Distribution of transit routes onto several central area streets, rather than one or two, in order to serve a larger part of the area and to provide more route capacity for transit vehicles.

- Provision of special, marked bus lanes on major transit streets.

Vehicles other than buses would be excluded from such lanes.

3. Transit service should penetrate the core area and provide the maximum possible service to this area.

This could include the development of special transit malls for the use of transit vehicles and pedestrians only.

4. Concentrations of intensive land uses should be developed along both existing and ultimate transit routes through-out the city so as to maximize the effectiveness of transit in serving highdensity development.

Parking 1. There should be two broad categories of parking: - Long-term parking for employees or all-day parkers.

This parking should be located adjacent to major access routes around the perimeter of the central area.

- Short-term or penetrator parking for shoppers, office visitors or patrons, and executives who demand convenient, close-in parking.

These facilities should be located as close as possible to destination areas.

In addition, limited quantities of very convenient, short-term "errand parking" should be scattered throughout the area.

2. Shopper and business patron parking should be provided within approximately 600 feet of major destinations.

3. Major parking concentrations for long-term parkers should be located in the perimeter of central area so as to intercept traffic destined to the core area before it reaches the core.

4. Long-term employee parking should, wherever possible, be located within 1,000 to 1,500 feet of major destinations.

5. Wherever possible, parking for executives and office patrons should be provided within or immediately adjacent to major office buildings.

6. Major parking concentrations should preferably have direct access to at least two streets to provide flexibility and ease of access.

35

ACCESS AND CIRCULATION

Existing Access and Circulation Conditions

Railroads and the North Saskatchewan River severely limit the number of access routes to the Central Area. Only five routes cross the CPR Railroad to enter the Central Area from the west and one of these (97th Avenue) is ineffective as an access route from that direction. From the north, only four routes cross the CNR Railroad and their capacities are severely limited.

Three bridges cross the river to provide access from the south. Furthermore, the steep bluffs formed by the river valley create severe grade problems for routes crossing the valley. On the eastern side of the area, the river and the CNR converge--thereby restricting the number of available routes from the east.

Existing streets in the Central Area basically form a rectangular grid pattern that has been applied with little regard for varying topography.

As a result, severe street grades are encountered around the bluff area.

Eighty-foot rights-of-way are common on most streets except in the eastern edge of the area where some 66-foot routes may be found. Virtually all streets operate with two-way traffic flow.

Recent studies indicated that nearly 57 percent of the daily traffic leaving the Central Area was through traffic and not associated with the area. During the peak hour this figure was slightly over 40 percent. This large amount of through traffic is primarily a result of the existing system and pattern of major streets in Edmonton. This pattern basically focuses on the Central Area--despite the continuing development of other major generators in various parts of the city. The series of river bridges are all oriented to direct traffic into the Central Area and few connect to effective bypass routes. As a result, crosstown traffic is funneled through the Central Area, thereby adding to the congestion and traffic problems of that area. Thus, a major consideration in planning for Central Edmonton should be the development of new facilities to carry traffic around this area and not through it as is now the case.

Existing Traffic Characteristics

At the present time approximately 26 percent of Metropolitan Edmonton travel is related to the Central Area. These trips are divided among the various modes of travel as follows: Auto Driver Auto Passenger Transit Other TOTAL

537 187 277 2% 100%

36

Figure 1 indicates the present magnitude and distribution of daily traffic flows within the Central Area. The importance of such approach routes as Jasper Avenue, McDougall Hill, and Bellamy Hill can be clearly seen from the great concentrations of traffic which they carry. Traffic is presently approaching and leaving the Central Area in the following directional quantities: North South East West

56,900 70,800 28,800 46,800

It should be remembered that approximately 57 percent of this traffic is non-Central Area through traffic.

The major traffic problems in overload conditions during the peak the Low Level Bridge--and excessive pedestrians in the core area. These improvements have not keptpace with

the vicinity of the Central Area are the hour on the river bridges--particularly conflicts between autos, buses, and conditions have resulted because traffic increasing traffic demands.

Access and Circulation - 1980

The Metropolitan Transportation Study has indicated that Central Area travel will more than double from 1961 to 1980. Total daily person trips to this area should increase from 146,400 to 325,600 in this 19-year period.

Following the principle of making the maximum effective use of each type of traffic facility, it is assumed that extensive improvements in bus (transit) operations and service can result in 35 percent of 1980 Central Area travel being served by transit. The 325,600 trips which will enter and leave the Central Area on a typical day are expected to be distributed among the various modes of travel as follows: Type of Trip Mode of Travel

Work

Non-Work

Total

Auto Driver

53,200

111,000

164,200

Auto Passenger

10,900

31,500

42,400

Transit

62,300

51,700

114,000

Other

5,000

TOTAL

131,400

5,000 194,200

325,600

The 1980 travel pattern is based upon the future size and character of Metropolitan Edmonton and the Central Area as envisioned by economic and planning analyses.

37

FIGURE 1: EXISTING AVERAGE DAILY TRAFFIC FLOWS IN CENTRAL AREA

LOW LEVEL BRIDGE

30000 20000 I 10000

38

The proposed circulation plan for 1980 is based on a concept of removing through traffic from the Central Area by providing a bypass system of expressways on all four sides of the area. (See Figure 2 ). These expressways also form the backbone of a major route system for the entire city. It is proposed that the southern edge of the Central Area be bounded by a freeway along the north bank of the river. Interchanges with Central Area penetrator routes are proposed for 102nd and 105th Streets and possibly at both the east and west ends of 97th Avenue. This east-west freeway would provide a new crossing of the Saskatchewan River and would interchange east of the river with the east leg of the freeway ring. This eastern route would run north across the river on a new bridge and skirt the Central Area in the vicinity of 95th Street. Interchanges with downtown penetrators are proposed at Jasper Avenue (relocated to 101st Avenue) and 104th Avenue. At the northeast corner of the Central Area the east and north freeway legs interchange.

The north freeway leg runs east-west across the northern edge of the area in the vicinity of 106th Avenue. Interchanges are proposed at 97th, 101st, and 105th Streets. The west freeway would be located west of the CPR Railroad.

Interchanges are proposed along this route at the north freeway, 104th, Jasper, 99th, and 97th Avenues. These freeways will serve the dual function of bypass routes for through traffic and approach routes for Central Area destined traffic.

1 II

1

In addition to access provided by the freeways, several major surface streets will continue as important access routes to the Central Area. On the west side, 100th Avenue will be a special penetrator route bringing Central Area traffic from the Groat Road Area. Jasper and 104th Avenues also continue as major routes outside the Central Area. To the east, a high-capacity one-way pair of 102nd and 102A Avenues will be fed by Jasper Avenue. Jasper, as a major traffic route, will be broken between 101st and 102nd Avenues. An improved 103A Avenue will run eastward from its connection with 104th Avenue and the east freeway leg, and will tie into the existing East End Bridge via a new connection.

A key element in the proposed Central Area street plan is the development of efficient, high-capacity distributor routes around the edges of the Core Area. To achieve this pattern of routes, the following improvements are proposed: - 99th Avenue will be improved as an important penetrator and distributor route eastward from its interchange with the west freeway leg.

Included in this improvement will be a grade-separated connection with the new 102nd Street-Bellamy Hill penetrator and the extension of 99th Avenue through a revised interchange area north of the Low Level Bridge. Here it will connect with an extension of an improved 97th Street to form a continuous high-capacity route around the southern and eastern edges of the Core.

L

- An improved and widened 104th Avenue will be the distributor for the northern edge of the Core Area.

39

FIGURE 2: CENTRAL AREA STREET PLAN-1980

1

1

1

CROSSTOWN BYPASS ROUTES AND INTERCHANGES =v..= pRIMARY ACCESS AND DISTRIBUTOR ROUTE --- LOCAL SERVICE STREETS

- On the west side, the Core will be bounded by a one-way Street system (See Figure 2 ) of 106th Street (northbound), 105th Street (southbound) and 104th Street (northbound). These one-way routes connect with the 99th Avenue distributor to the south and 104th Avenue to the north. The 105th-104th pair is also fed by the 105th Street river crossing. Because of ramping difficulties along 99th Avenue as it descends the bluff, traffic from the east on 99th will use the 105th-106th Street pair for access to the west side of the Core. Traffic from the west on 99th will use the 104th-105th Street pair for similar Core access.

Much of the present pressure on the Low Level Bridge and McDougall Hill will be eased by the various improvements described above. However, they will remain important access routes to the Central Area in the 1980 plan for traffic approaching from the southeast. The development of the 99th Avenue-97th Street distributor through the area will require certain revisions and improvements in the present Low Level Bridge interchange.

Other significant changes and improvements in Central Area streets are: - A continuous east-west one-way pair of 102nd and 103rd Avenues will be developed across the area. At 101st Street a suitable connection between 103rd and 102A Avenues is proposed with 102A Avenue becoming the companion route for 102nd on the east side of the area. 102A will operate as one-way westbound and 102nd Avenue as one-way eastbound.

- 97th Avenue will be developed as a major access route to the Government Centre with connections to both the west and south freeway legs.

- Street closures in the Central Area have been minimized to maintain flexibility and ease of circulation. The large block size in Central Edmonton was a major factor in this respect. Two streets, 101st Street between 102nd and 103rd Avenues and 102nd Street between 102nd and Jasper Avenues, have been closed to auto traffic in the proposed plan. It is suggested that both of these street sections be developed as transit malls complemented by an imaginative use of landscaping and other pedestrian amenities. Other street closures concern primarily sections of local streets in the Civic Centre whose rights-of-way will be occupied by new buildings.

The proposed street plan will provide 77 lanes on major routes (39 one-way approach lanes) just inside the freeway bypass ring. This represents a peak hour approach capacity (one-way) to the Central Area of approximately 19,500 vehicles on these routes. METS has indicated that approximately 95,800 vehicles will enter the Central Area (one-way trips) each day in 1980.

41

This will result in a peak hour one-way demand of 16,800 vehicles (peak hour one-way movement is 17.5 percent of 24-hour one-way movement).

Figure 3 indicates the distribution and magnitude of expected 1980 vehicular traffic flows in the Central Area. These estimated volumes clearly indicate the importance of the access and distributor routes in carrying major concentrations of future traffic. These volumes reflect only a minimal amount of through traffic with the great majority of such non-downtown movement being carried by the crosstown bypass routes.

The general magnitude of Central Area street improvements and modifications which will be required to meet 1980 traffic requirements is expressed in Figure 4 . This map suggests future cross sections for each new or revised street and indicates those streets along which no new right-of-way or pavement will be required. The numbers along the street sections are keyed to suggested cross sections as tabulated in Table 4a. This table indicates the general lane requirements and approximate desirable right-of-way and pavement widths.

Some street sections in Figure 4 carry a special code indicating a retention of existing pavement and right-of-way for an interim period.

This is in recognition of the practical difficulties which would be encountered in widening these routes in the near future to desired standards and cross sections. In some cases one section of street is coded for widening while an adjoining section retains the existing pavement and right-of-way for an interim period. Thus, it may be possible at an early date to improve an entire route to high standards with the exception of one or two short restricted sections. At these locations the improved section may have to connect temporarily to a cross section of substandard lane widths or to a cross section without curb lanes. However, the fact remains that a substantial and worthy improvement can be made along 80 to 90 percent of the route. To delay all action until the entire route could be improved to ultimate standards would needlessly prolong congestion in the area; such delay also invites the possibility that new land development will infringe upon needed right-of-way and thus destroy any chance for route improvement.

The success of any planning effort is dependent, to a great extent, upon the staging of the changes and improvements which the plan proposes.

In general, the Central Area street plan proposed herein has been predicated upon estimates of 1980 traffic demand. This indicates that the improvements contained in the plan should be put into effect within the next ten to fifteen years. While it is not possible at this time to put a realistic date or priority on each proposed improvement, there are certain proposals which stand out in their need for early attention: - Extension of a high-capacity 104th-103A Avenue to the East End Bridge.

This project will enable traffic to be routed around the edge of the Core Area rather than using Jasper Avenue to pass through the Core.

42

FIGURE 3: ANTICIPATED 1980 TRAFFIC VOLUMES IN CENTRAL AREA

VEHICLES PER DAY

LESS THAN 6,000 6,000.10,000 10,000-14,000 14,000.20,000

20,000 AND OVER

1

43

FIGURE 4:

PROPOSED STREET MODIFICATIONS IN CENTRAL EDMONTON

oo 0

lbwcolo -Iii \,\0.4111: •*26°'''''

mart

•

1

0

NEW ROADWAYS WIDEN PAVEMENT AND RIGHT-OF-WAY WIDEN OR IMPROVE PAVEMENT ONLY

TRANSIT MALL STREETS TO BE REMOVED RETAIN EXISTING PAVEMENT AND RIGHT-OF-WAY

0

44

PROPOSED CROSS-SECTION AS TABULATED IN TABLE "A"

TABLE 4A:

Cross Section No.

Proposed Typical Cross Sections for Central Edmonton Streets Special Bus Curb Moving Desirable: Lanes Lanes Lanes Pvmt.

R.O.W.

Divided Routes: 6 1 2 4 Undivided Two-way Routes: 4 3 4 4 2 5 One-way Routes: 6 3 7 4 8 3

-

-

70 to 80 50 to 60

2

2 2 2

80 60 40

110 90 80

2

1 2 2

60 60 50

90 90 80

90 to 100 60 to 70

Pavement 1. Desirable pavement figures in the above table reflect the use of these standards: . Moving lanes - 11 or 12 feet Special bus lanes - 10 feet .

Curb lanes - 8 feet .

Right-of-Way 1. Fifteen-foot sidewalks are recommended throughout the Core Area; however, this figure may be reduced to ten feet in the fringe area.

2. Right-of-way requirements may be reduced through the use of arcaded sidewalks.

1

General Notes

:V

1. Figure 4 indicates that interim solutions may be acceptable on certain route sections until the desirable standards become capable of practical achievement. Through the use of lane and sidewalk width standards somewhat below those stated above, the desired number of lanes can be achieved initially on these routes. These temporary cross sections should be upgraded in the future as it becomes practical to widen presently restricted sections.

45

- Development of the 99th Avenue - 97th Street distributor around the east and south edges of the Core Area. This project will provide needed relief to both McDougall Hill and Jasper Avenue.

- Development of the 104th- 105th - 106th Streets one-way system.

This project will provide an efficient distributor system for the west side of the Core Area.

The importance of the freeway bypass routes to Central Area transportation should be emphasized in this discussion of staging. Because of the vital function which they will perform in removing through traffic from downtown streets, Central Edmonton will benefit greatly from the early construction of major elements of this bypass system.

46

PUBLIC TRANSIT

Background

1

The removal of the street railway tracks, commencing in 1939, provided the last major expansion in traffic capacity on the downtown streets. The trolley coach system, later augmented with motor buses, has proved to be a satisfactory and economical passenger carrier through 1960. However, with the growth of the City the transit system was not able to handle the peak passenger loads. The discomfort and delay resulted in many patrons leaving the system and using their cars; adding to the peak hour traffic congestion.

The consequent increased costs led to increased fares, tending to further aggravate the problem.

This mutual interference of traffic and transit has led to a deterioration in the operation of both the automobile and the transit bus, while the large numbers of waiting passengers at major transit loading stops are overcrowding several important sidewalk locations, to the detriment of other pedestrian traffic and even adjacent small businesses. Nevertheless, the trolley system has served the downtown oriented patrons well, and has been profitable. In fact, this system has subsidised most of the school and special fare concession passengers as well as some of the less patronized suburban operations.

The trolley system is aging and becoming obsolete. It will have to be replaced with a facility that can cope with the ever increasing magnitude of the transportation task ahead in the growing, dynamic central core of Edmonton.

To develop "a balanced transportation system", it will be necessary to use each facility, whether it be public transportation, surface streets or freeways, to the maximum advantage. It will be necessary to examine the role of public transportation, with particular emphasis on the central area transportation requirements.

Existing Conditions

Transit presently occupies an important position in the provision of transportation service to the central area. As has been previously stated, transit buses presently carry about 27 per cent of all person trips entering and leaving the central area (38,600 each day). During the peak hours each day, this proportion is even higher. 38 per cent of those entering and leaving the central area in the peak hours use the transit buses. Transit usage in Edmonton today is generally at a higher level (80.5 rides per capita) than in many cities of comparable size.

47

1 1

During the afternoon peak hour, approximately 170 buses entered the central area. Lines running through the area accounted for about 65 per cent of these buses, while 35 per cent were on lines looping within the area.

Jasper Avenue carried the largest number of buses (112 buses in both directions during the afternoon peak hour -- or an average of almost one per minute in each direction). Other major bus streets and their peak hour bus loads were 100 Street (73 buses) and 101 Street (67 buses).

These observations were taken in 1961. Since that time several changes have been introduced. With the annexation of the town of Beverly, additional transit service was provided from this area by the Edmonton Transit System, and the introduction of several express bus routes bring a further 50 transit buses into the central area in the evening peak hour.

Initial Transit Improvements

As stated earlier in this section, the Metropolitan Transportation Study has estimated that the central area travel will increase from a figure of 146,400 to 325,600 daily person trips between 1961 and 1980.

r--

It is initially assumed in the determination of the street "access and circulation" plans as well as those in the "parking" section of this report, that the transit patronage will be increased to meet the requirement of serving 35 per cent of these 1980 person trips entering and leaving the central area (114,000 each day). During the peak hours, it is anticipated that this transit patronage will be about 44 per cent of the person trips leaving the central area (peak transit trips are 26 per cent of the 24 hour one-way volumes).

Of this total of 325,600 daily person trips, 43 per cent are estimated to come from, or go to, areas lying within 21/2 miles of downtown. These are the districts where transit has been best able to serve and has received its higher levels of patronage. To counter the serious effects of traffic congestion upon the transit system, to permit the standards of service to be improved, and to attract this level of transit usage, it is proposed to institute a series of particular transit improvements within the central areas as shown in Figure 5 . These improvements include: Special bus lanes along Jasper Avenue, 100th Street, 101st Street and 102nd Avenue. A plan view of suggested laning arrangements for these facilities is shown in Figure 6. All vehicles, except buses and vehicles desiring to stop briefly at the curb or to make right turns, would be excluded from these special marked lanes. This should provide additional transit route capacity by smoothing the flow of transit route capacity by smoothing the flow of transit buses along these special, exclusive traffic lanes.

48

tr.

FIGURE 5: PROPOSED INITIAL TRANSIT FACILITIES

1 11

II

PRINCIPLE TRANSIT ACCESS POINTS

EXCLUSIVE TRANSIT LANES STREETS RESTRICTED TO TRANSIT ONLY OTHER IMPORTANT TRANSIT STREETS POSSIBLE FUTURE SUBWAY

IT IT 49

FIGURE 6 LANE ARRANGEMENTS ON MAJOR TRANSIT STREETS

BUS LANE

BUS LANE"

17' 9.5' 9.5' 9.5' 9.5'

72'

BUS LANE"

PROPOSED LANE ARRANGEMENT FOR EXISTING JASPER AVENUE PAVEMENT

BUS LANE*

12' 9' 9' 9' BUS LANE*

56'

17'

PROPOSED LANE ARRANGEMENT FOR EXISTING 102nd AVENUE PAVEMENT

BUS LANE* 18' 11' 11' 11' 11' BUS LANE*

ULTIMATE DEVELOPMENT OF TWO-WAY STREET WITH SPECIAL BUS LANES *NOTE: BUS LANE INCLUDES CURB AREA FOR OTHER STOPPING VEHICLES.

50

18'

80'

1

It should be noted that with the large numbers of transit buses on these streets today, little opportunity is afforded the motorist to drive in these lanes next to the curb. In effect, the sheer weight of numbers of the present transit bus operations occupy practically an entire traffic lane along portions of Jasper Avenue, 102nd Avenue, 100th Street and 101st Street, in each direction.

L 1

The routing of additional buses into 102nd Avenue, both to relieve Jasper Avenue and to better serve the 102nd Avenue area. Even though 102nd Avenue is proposed to be one-way eastbound, special bus lanes in each direction are proposed. A suggested treatment of this street section is depicted in Figure 6 .

71

Exclusive bus lanes through the 101st Street and 102nd Street Mall areas.

This innovation should greatly enhance the position of transit in the Core Area by providing added transit route capacity and passenger loading areas, and by introducing transit into the heart of the Core Area where autos are excluded.

1

1

7,.

L 1

Ultimate Transit System

Based on additional studies (see Section V ), a possible future transit tunnel has been indicated along 102nd Avenue (See Figure 5), although the form which future transit will take is not completely clear at this time.

The possible development of more efficient transit in this area provides another reason for shifting additional buses to 102nd Avenue and for creating increased intensities of land development along this street.

PARKING

1

Existing Facilities

-

1311

A block-by-block inventory in 1961 of the area bounded by the CNR Railroad, 97th Street, 100th Avenue, and the CPR Railroad indicated a total of 10,500 parking spaces. Of this total, 23 percent was in the form of curb spaces and 77 percent was comprised of offstreet spaces. It is estimated that another 5,000-6,000 spaces were located in the remainder of the Central Area, thus resulting in a total of approximately 16,000 spaces. Not all of these spaces, however, were available for use by the general public or were in an acceptable location for extensive use.

A reasonable estimate of the parking demand or requirement on a typical weekday in the Central Area in 1961 was 12,500, comprised of 8,700 spaces for employees, 1,300 spaces for shoppers, and 2,500 for office and business patrons.

ci 51

Parking in 1980

Based on projected Central Area employment and trip generation, overall 1980 parking needs were determined. Assuming that 35 percent of all person trips to the Central Area will be handled by transit, the basic parking requirements classified by major purpose of trip are: Type of Parker

Spaces Required

Employee Shopper Other Visitors to Downtown Establishments

14,500 2,900

TOTAL

23,400*

6,000

The parking plan developed to satisfy these requirements is shown in Figure 7. It indicates the suggested general locations of major parking concentrations and the types and quantities of parking which they provide.

Among the parking designated for employees are the spaces required by business and professional men who use their cars for business purposes during the day, or who will insist on occupying the more convenient facilities regardless of cost. To meet these needs, approximately 20 to 25 percent of the employee parking should be in close proximity to ultimate destinations (3,000 of the 14,500 employee spaces have been set aside for this purpose and use). These 3,000 spaces have been provided within or immediately adjacent to buildings which are major generators.

As may be seen from an examination of Figure 7, long-term employee parking in the proposed plan has followed the principle of fringe area location. Major employee parking areas are proposed east of 97th Street to serve the heavy employment of the Civic Centre area. Ready access to this parking is provided by the 102nd-102A Avenue one-way pair, along with Jasper and 104th Avenues. Other major employee parking concentrations are located along the west side of the core between the 104th-105th Street one-way pair.

104th Avenue and 99th Avenue also serve major employee parking areas. (See Figure 7).

Shopper and patron parking follows the principle of being located as close as is practical to the buildings they serve. Major new shopper parking structures are proposed in the Woodward's block, the Bus Terminal block (west of Eaton's) and the blocks just south and west of the Hudson's Bay store (See Figure 7). These facilities are to be closely tied to major destinations by special pedestrian routes (see general core area plan).

*does not include coliseum or residential parking

52

FIGURE 7: MAJOR PARKING CONCENTRATIONS-1980

JASPER AVENUE

00

98 AVE

CROSSTOWN BYPASS ROUTES AND INTERCHANGES

NUMBER OF SPACES

PREDOMINANT TYPE OF PARKING

SHORT-TERM PARKING

LONG-TERM PARKING

Parking generally ossamed to be in the form of curb spaces and small offstreet facilities. However, several possible parking concentrations ore shown in the more densely developed areas.

Based upon total Central Area Parking Requirement of 23,400 spaces.

53

, Patron or other visitor parking has been distributed according to non-retail employment since these trips are most often made to offices, etc.

The largest demand for, and concentration of, patron parking is in the Civic Centre Area. Much of the patron parking is proposed to be provided within or immediately adjacent to major new office buildings.

Parking for major nighttime Coliseum events is expected to be spaces normally used by daytime Civic Centre employees and patrons. Ample parking (approximately 4,000 to 4,500 spaces) for Coliseum night events will thus be available within one to two blocks of the Coliseum. Since very few large Coliseum events will occur during the day, no additional major parking areas are being provided for daytime events. Should future scheduling of events tend to increase the size of daytime Coliseum functions, it would become necessary to provide additional parking for such activities. As these demands grow, it is possible that as many as 1,500 additional daytime parking spaces may be needed. This additional parking could most probably be located east of 97th Street.

The major offstreet parking areas shown in Figure 7 do not account for all of the estimated requirement of 23,400 spaces. No major parking concentrations have been shown for the northwestern sector of the area since its development should be of a lower density than in the Core Area. Although its overall parking requirements are included in the 23,400 total spaces for the Central Area, its parking should be accommodated in smaller facilities (probably surface lots) associated with individual buildings (or groups of buildings) and by curb spaces. A similar situation exists in the Government Centre Area occupying the southwestern sector. The plan does suggest a few locations in this area where major parking concentrations might be desirable, primarily from the standpoint of major route access to such parking.

The parking facilities shown on the plan which are located in the area bounded by 105th Street on the west, 96th Street on the east, 99th Avenue on the south, and the CNR Railroad on the north account for approximately 90 percent of the demand in that area. The remaining 10 percent is assumed to be accommodated in small lots, and facilities scattered throughout the area and immediately adjacent to the area.

The proposed 1980 land use plan contemplates substantial new residential development in the Central Area -- primarily around the bluff area along 103rd Street. This development will certainly require an appreciable amount of parking. Such parking should be provided offstreet and as a part of individual apartment building developments. It is assumed that future residential parking needs will be accommodated in this manner.

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Land Use The Edmonton Central Area extends from 107th Avenue on the north, to the river, on the south. One-hundred-and-twelfth Street marks its western border. And 95th Street defines it on the east.

There are eight distinct functional districts within this area.* These districts vary in terms of the use of land within them, the types and intensity of building development, and the functions they must serve.

With only one exception, the functions proposed for these areas for the future are being served by them today.

Central Edmonton contains almost 1,000 acres of land. About 80 acres, or eight percent of the total area, are located in the river valley.

Another 45 acres are devoted to rail yards. About 85 acres consists of steep slopes and other marginally buildable areas.

Taking a long-range (20-year) view, it is apparent that Central Edmonton contains much development potential. It is estimated that no more than half of the total area (exclusive of streets) would be fixed in its present use for the long run. Of the approximately 300 acres of potential development land above the river valley, only approximately 80 acres are committed in previously announced plans. (Primarily in the Civic Centre and Government Centre areas.)

The combination of a growing economy, extensive areas for potential development, and an outstanding and uniquely commanding site overlooking the Saskatchewan River makes it possible to predict and project substantial and dramatic growth and new development in Central Edmonton.

The District Plan The over-all plan for land use in Central Edmonton defines and establishes functions and general standards and objectives for each of eight major districts. These districts are: 1. The core, retail and office centre.

The area proposed as the core, retail and office centre is generally bounded by 100th Avenue, 100th Street, 104th Avenue, and 105th Street. Two blocks in the northwest corner of this area are basically a part of the wholesale district. The eastern edge of the retailoffice core merges with the Civic Centre area; major retail and office functions are and should be intimately related to those of the Civic Centre.

The function of the retail-office core should be to serve as the key and most intensively developed centre for retail shopping and

*The area in the river valley is physically a part of Central Edmonton, but it is functionally unrelated. It is, therefore, not included here.

1 55

CENTRAL EDMONTON-1980

i i IIIIIfihII//IIiI//////////////// //[j

JASPER AVENUE

CORE SHOPPING RETAIL AND OFFICE

HIGH DENSITY OFFICE AND RETAIL

LOW DENSITY APARTMENTS AND SPEC/AL PURPOSE OFFICES

CIVIC CULTURAL AND GOVERNMENTAL

HOTEL, MOTEL AND OFFICE

CITY CENTRE HOUSING AREA

5

11071, INSTITUTIONAL AND HOUSING DEVELOPMENT

WHOLESALE OFFICES AND WAREHOUSING

COMMERCIAL AND LIGHT INDUSTRIAL

56

general office activities. In addition, this area should contain various and extensive entertainment, dining, and meeting facilities.

The main retail and office core should serve as the commercial heart of Edmonton and of the Edmonton region. It should be the site of all major business,administrative, financial and retail shopping activities.

Altogether, the retail-office core contains about 100 acres. Of these, it is estimated that approximately 35 acres are or could potentially be available for new development.

Some of the principles that should be applied in the development of this core area are: a. High-density, compact development: The retail-office core should contain development of the highest density and of the greatest compactness. It is essential that the core area be intensively and compactly developed, if it is to afford maximum opportunities for personal, face-to-face contact. b. Small, pleasant, open spaces: In order to preserve compactness and ease of pedestrian movement, open spaces, plazas and the like, should be designed to a relatively small scale. All such spaces, streets and sidewalks, should be designed first to make pedestrian movements safe and convenient, and to increase the attractiveness and pleasantness of the area. c. Free of through-traffic: The retail-office core should be kept as free as possible of through-traffic that is unrelated to the area. d. Transit service: The retail-office core should receive the highest possible level of transit service. e. Patron parking: Parking for patrons and visitors should be provided within and at the edges of the retail-office core. No part of the core should be more than 600 feet from a major parking facility.

And every major parking facility should, if possilple, be connected directly to some major destination. f. Connection to other centres: Maximum opportunity should be provided for pedestrian movement between the retail-office core, and the Civic Centre, Government Centre, and highrise office area.

g.

Large-scale site development: Maximum opportunity should be provided for large-scale site and building development. Every advantage of such development should be sought: including integrated parking, built-in pedestrian facilities, plazas, arcades, consolidated loading facilities, etc.

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2. Civic Centre The Civic Centre district is bounded by Jasper Avenue, 97th Street, the Canadian National Railway, and 100th Street. On the west, the Civic Centre area is bordered by the main retail-office core, to which it is intimately related. To the east, it is proposed that the area be bordered by additional, related motel facilities, and by a new Farmers' Market.

eig6L-4,

Altogether, the Civic Centre area contains about 50 acres. About 35 to 39 acres (excluding the mall) are or will be available for new development. Of these, approximately 33 acres are committed to new development proposed in the Civic Centre plan.

The main function of the Civic Centre area will be to serve as the actual and as the symbolic civic and community centre for the City of Edmonton. As such it should contain most of the City's administrative and traditional buildings. Related and compatible functions, such as a new Coliseum and Federal Post Office, are logical and proposed parts of the Centre.

Because of its proximity to the main retail-office district, the convenience of the Civic Coliseum, and its high quality, civic environment, the Civic Centre is also an excellent place to concentrate and expand the City's supply of hotel and meeting facilities.

Some principles to be observed in the development of the Civic Centre are: a. Open, civic sites backs ing.

landscape site development: In order to make it possible for buildings to have the desired symbolic and aesthetic effect, in the Civic Centre area should be developed with ample setand landscaping, and generally spacious and open building sit-

b. Pedestrian connections: Because activities in a number of the buildings in the Civic Centre area are closely related, good, weatherprotected, pedestrian connections should be provided between major buildings and major building groups. c. Transit: Because of the relatively high employment concentrations in the Civic Centre, this area should be provided with good transit service. d. Parking: Because a relatively large number of visitors will be attracted to the Civic Centre,patron parking should be located within and at the edges of the area. e. Connections to retail-office core: Because of the intimate relation between activities in the Civic Centre area and those in the retailoffice core, good pedestrian connections between these two areas should be provided.

58

Aker

3. City Centre Housing Area The area generally bounded by 106th Street, 100th Avenue, Macdonald Drive, and McDougall Hill is the City Centre Housing District.

This area contains approximately 90 acres. About 13 net acres have been recently developed for new, primarily high-rise housing. Substantial amounts of additional land may also be available for more new development.

MEI

The primary function of this area should be for the development of high density housing in an urbane setting for small families and individuals. Housing in this area should appeal to persons who are employed in the nearby areas of the Government Centre, the main retail-office core, or the special purpose office district.

In addition to housing, cultural institutions, restaurants, and limited convenience retail services should, if desired, also be allowed.

Some of the major principles that should be observed in the development of the City Centre Housing District are:

a. Orientation to river view: A key asset of the area is obviously its view of the Saskatchewan River Valley. The planning of the overall area as well as of individual sites should orient buildings to take maximum advantage of this invaluable and unique asset. b. Connections to government and retail-office centres: A second major asset of this area is its position between two major employers: the Government Centre and the Retail Office Centre. In order to take maximum advantage of this asset, good pedestrian connections to each of these employment centres should be created and maintained.

7 .0

Ael

c. Separation of traffic types: Because it is necessary that certain streets within this area be used for major circulation, it is important that the street system for this area be developed to allow the separation of general downtown and local traffic. Such separation will help to preserve the capacity of major carriers and will help to protect the residential character of approaches to individual buildings. d. Off-street parking: Adequate off-street parking should be provided in connection with or available to each individual development in the area. e. Dominance of skyline: Although high-rise buildings should be encouraged in the City Centre Housing District, heights should be moderated to preserve the dominance of towers proposed to be developed in the main retail-office core.

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4. Government Centre The Government Centre District is bounded generally by 109th Street, 99th Avenue, 106th Street and the river. This area contains approximately 45 acres. About 15 acres are or will potentially be available for new development.

A primary function of this district is to serve as a centre for provincial and federal governmental activities. All other activities in this area should be supplemental and supporting to this primary function.

_a

Principles to be observed in the development of this area are:

U

•

a. Open, landscaped site development: The development of sites within this area should be characterized by an openness and by landscape treatment that will enhance the view of individual buildings and of the centre as a whole. b. Dominance of Legislative Building: Building heights and designs should be moderated to preserve and if possible to enhance the dominance of the Legislative Building in the overall composition and view of the area.

E

c. Pedestrian connections: Because the activities in the various buildings of the Government Centre are closely related, good, allweather pedestrian connections between them should be developed and maintained.

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IL

d. Frontages: Because the Government Centre is located at a major entrance point to central Edmonton, and because it may be perceived as a unified whole, attractive, "frontage" views of the Government centre area should be developed from 109th Street and 99th Avenue.

5. Apartment and Special Purpose Office District • The apartment-office district is generally bounded by 99th Avenue, 110th Street, the lane north of Jasper Avenue, and 105th Street.

This area contains approximately 58 acres. About 30 acres within this area may be presently or potentially available for new development. Approximately 13 acres are occupied by office and apartment development built within recent years.

II

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•

The major functions of this area are to provide sites for highdensity apartments and apartment-hotels, and for low-density and special purpose offices. In addition to these major functions, civic and cultural institutions, restaurants and limited convenience retail services, and hotel and motel facilities should also be allowed.

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Some of the major principles to be observed in the development of this area are: a. Moderate densities and height: Building densities and heights within this area should be held to moderate levels in order to: - Preserve the visual dominance of the Government Centre and core areas.

To hold traffic generation in these areas to moderate levels (it will be difficult to provide a high level of transit service in this area for the foreseeable future).

To protect the efficiency and attractiveness of vehicular and transit approach routes to the core and to the Government Centre.

To maintain an environment that will be attractive to apartment and special purpose office construction.

To allow space for the provision of off-street parking in connection with each development. tr

b. Predominance of housing: Although the area should be developed for both housing and special purpose office use, preference should be given to housing development. It is important for any continuation of sound housing development in the area that a pleasant, "residential" character be preserved. Such a character is also important to the attraction and maintenance of special purpose office activities.

C. Off-street parking: Off-street parking should be required in connection with each development.

6. Wholesale-distribution district

E

The area generally bounded by 112th Street, 106th Avenue, 105th Street, and the lane north of Jasper is designated as the wholesale-distribution district. Additional areas that are considered a part of the district include lands east of 105th Street, between 103rd and 106th Avenues, extending north and east of the railroad to 95th Street, and south of the railroad to about 103rd Street.

Altogether, this area contains about 70 acres. Substantial portions of the area are or could potentially be available for new development. There is considerable opportunity for the enlargement of sites for existing establishments, and for the creation of new industrial or commercial sites.

The primary function of this area is to serve as a location for wholesale sales and distribution activities. Also highly desirable in the area would be printing industry activities and other light

•

manufacturing and processing activities employing persons who may be dependent on transit or having some relation to activities in the Government Centre or retail-office core. Secondary activities in the area could include whuch extensive retail uses as automotive sales and repair, building materials suppliers, etc. '

Some of the major principles to be observed in the development of the wholesale-distribution district are: a. Low-density development: Densities of building and site development within the wholesale-distribution area should generally be held to relatively low levels in order to: - Preserve the visual and actual dominance of the core and Government Centre areas.

- Protect the efficiency and attractiveness of entrances and approaches to the retail-office core and to central Edmonton as a whole.

- To allow and encourage the development of large, low buildings that can efficiently serve display, sales and storage functions.

- To assure adequate space for off-street truck loading, parking, etc. b. Limitation and screening of outdoor storage: The amount and type of outdoor storage should be limited, and certain types of outdoor storage should be screened from street view. c. Off-street parking and loading: Off-street parking and loading should be required to be provided for each building development.

7. Motel and Special Purpose Office District

E

The area generally bounded by 95 Street, the Canadian National Railway, 97th Street, and the river bluff is designated as the moteloffice district. This area contains approximately 25 acres, of which about 15 acres are or might potentially be available for new development.

The function of this area is to serve as a site for relatively lowdensity motel and hotel development, small, special-purpose offices, and for a Farmers' Market. The area will also serve as a location for major off-street, all-day parking. And limited retail services catering to visitors and employees in the area can be provided.

The major principles to be observed in the development of this area are: a. Low-density: Building and site development in this area should be held to relatively low-densities to:

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tO

- Preserve the visual and actual dominance of the main retailoffice core.

- To assure adequate, spacious site development with room for offstreet parking, building setbacks and other features that will maintain the pleasantness and efficiency of approach routes into central Edmonton.

1

b. Pedestrian connections: Good pedestrian facilities connecting with the Civic Centre area should be provided.

r11

c. River orientation: Sites bordering and overlooking the river valley should be developed to take advantage of this asset. Higher densities, compatible with other objectives cited herein, should be encouraged in such areas.

8. Institutional-Housing District The area generally bounded by 112th Street, the lane north of Jasper Avenue, the railroad along 110th Street, and the river bluff is designated as the institutional-housing district. It contains approximately 55 acres, of which about 26 acres are estimated to be available or potentially available for new development.

The function of this area is to serve as a site for major hospital and related residential and office development. Secondary activities would include convenience retail services for people working or living in the area.

Major principles to be followed in the development of the area are: a. Spacious, pleasant site development: The development of sites within this district should result in a spacious, pleasant appearance, compatible with the intended function of the area as an institutional and housing setting.

1

b. Moderate densities: Building and site development in the area should be held to moderate densities, as a means of preserving pleasantness and spaciousness, and to assure adequate space for off-street parking and other site needs. c. Off-street parking: Off-street parking should be provided in connection with each development. d. Commercial and office activities: Commercial and office activities should be confined to locations bordering Jasper Avenue. e. River orientation: Housing sites in the area should be developed to take advantage of river views.

63

FUNCTIONAL DISTRICT MAP

...--MOTE

\

/

AND SPECIAL

PURPOSE OFFICE DIST

,V/ WHOISALE DIS RIBUTION DISTRI t r-

103 AVE

/

102 AVE

RETAIL AND OFFICE CENTR

ASPER AVENUE

ogniili i11111111111111,..

RTMENT ANO SPEC St POSE VOICE DOTE

100 AVE

'sm:V

CROSSTOWN BYPASS ROUTES AND INTERCHANGES PRIMARY ACCESS AND DISTRIBUTOR ROUTE LOCAL SERVICE STREETS RAILROADS BLUFF SLOPE AREA

64

SECTION V

AREA, DISTRICT AND FACILITY PLANS

The Retail-Office Centre The Civic Centre The City Centre Housing Area The Pedestrian In Downtown Edmonton Rapid Transit

65

SELTION V

AREA, DISTRICT and FACILITY PLANS

As a first step in the detailing and eventual implementation of the plans and principles set forth herein, additional studies and materials have been prepared for certain key portions of Central Edmonton and for some of the most important facilities to be contained therein. These represent only a beginning of the continuing process of plan refinement and adjustment that must proceed if the general planning so far completed is to be carried to fruition.

Additional studies have been completed for three studies and two sets of facilities. These are:

-

The retail-office centre The Civic Centre City Centre Housing Area Pedestrian Facilities Transit Facilities

Studies of these have proceeded to varying levels of detail, and conclusions regarding them are thus more or less firm. However, these studies are consistent in one respect; they each illustrate how important principles of Central Area Planning may be achieved. In each instance, further planning and further detailing will be required. And plans will be needed for areas and facilities not included herein.

The Retail- Office Centre

The area generally bounded by 105th Street, 104th Avenue, 100th Street and 100th Avenue is defined as the Retail-office Centre of Downtown Edmonton.

A four block section at the north-west corner of this area belongs to the Wholesale-Distribution district and a three block section at the southern end to the Apartment district; However, two principal activities dominate the area. These are: 1. Prime Shopping-Retail 2. High Density, multi-purpose office

66

1. Prime Shopping-Retail 411

Prime retail activity is centred around four main establishments: The Hudson's Bay Company, Eaton's of Canada, Johnstone Walker Ltd., and Woodward Stores. Eaton's and Woodward's, because of their proximity to each other form one major pedestrian generator; Hudson's Bay Company and Johnstone Walker's form another. There is a significant volume of pedestrian traffic between these two major generators and the area between is thus occupied by somewhat smaller stores.

These two pairs of retail establishments are not the only major pedestrian generators. There are four major pedestrian generating centres.

The City Hall and other Civic buildings form another centre toward the north-east, and the Macdonald Hotel and banks group form one toward the south-east. Pedestrian traffic is largely centred within the quadrangle formed by these four centres.

The most significant attraction is between the four department stores in a north-south direction. As a result, establishments along 101st Street and 102nd Street, together with the three major department stores, and Johnstone Walker's, form the hard core of retail shopping in downtown Edmonton.

Somewhat apart from this core, a number of retail establishments are located along both sides of Jasper Avenue; west of 103rd Street. The south side of Jasper Avenue has a lower concentration than the north. At present, the south side is at a disadvantage because the majority of the retail establishments are located on the north side of the street. This plus the barrier effect of Jasper Avenue keeps the south side of the avenue from having a major shopping potential.

On the other hand, Jasper Avenue can provide a good address and prestige location for specialized stores, office buildings, entertainment activities, banks and other commercial enterprises.

While 101st and 102nd Streets have good retail activities, 100A Street is not a substantial retail street because the continuity of retail frontage along this street is interrupted at several locations by nonretail uses such as banks, parking ramps, office buildings, etc. There is, however, a good potential for the west side of 100A Street to be developed as a continuous retail frontage if the two blocks between 101st Street, 102nd Avenue, 100A Street, and Jasper Avenue could be redeveloped.

These blocks could, presumably, be developed to make room for more

67

114N:r

CORE AREA LAND-USE PLAN

'73

,

I 0

6

CORE SHOPPING RETAIL AND OFFICE

11111 HIGH DENSITY OFFICE AND RETAIL CIVIC CULTURAL AND GOVERNMENTAL

NM WHOLESALE OFFICES AND WAREHOUSING

HOTEL, MOTEL AND OFFICE

gm BUS TERMINAL 0 SO 100 000 300 400 SCALE IN FEET

68

1 L1

intense retail use and also to locate some office structures over retail activities. The projected eastward expansion of Woodward's would also increase the possibility of developing 100A Street - or at least its west side - into a healthy retail area.

Another block with a good potential for redevelopment to an intense retail and office use is the block partly occupied by the Hudson's Bay Company. If the northern half of this block could be assembled, it could be developed into an integrated office complex to provide continuity from Jasper Avenue to 102nd Avenue and all-weather pedestrian connections to transit facilities on either street.

Principles for the Shopping-Retail Core Key development objectives for this area are: 1. All efforts should be made to have continuous retail frontage throughout these blocks. Retail frontage should not be interrupted by office, bank, parking or similar non-shopping activities.

2. The lower levels of office buildings should be designed for retail use.

3. Development in this area should generally be of a large scale.

4. Previously established planning principles should be applied here with more effect than in any other part of the downtown.

For example: a. Every possible and reasonable separation of pedestrians from vehicular traffic should be achieved. b. This area should receive the best possible transit service. c. The environment in this area should be pleasant. In other words, shopping should be an enjoyable experience; outside appearances of the buildings and streets are just as important as the interiors of the stores. d. The best possible integration of development should be obtained, through coordinated design and large scale development; multi-purpose use should be made of sites, key parking and truck loading should be provided, and a fine system of pedestrian facilities should tie areas together. e. Great care should be given to the provision and design of open spaces and to the relationship between these open spaces and various buildings. Open spaces should give the -7

69

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impression of spacious, pleasant surroundings, and yet should not be so large as to discourage the pedestrian flow that is necessary to the prosperity of retail business and the convenience of employees, customers and patrons.

7

2. High density, multi-purpose offices

11

High density,multi-purpose offices are now concentrated in a broken band around the south and east edges of the shopping-retail core. Where sites can be obtained in this area, new offices have been built. However, a general shortage of adequate sites has forced some major multi-purpose offices to be built in areas to the west, where land is more plentiful.

There also seems to be a tendency for the office area to more nearly surround the retail core, with some offices located to the west and northwest.

In support of both a logical trend and sound principles, it is proposed that additional office multi-purpose development be located both within the shopping-retail core and in an immediately surrounding band, particularly along the south side of Jasper Avenue, and in the areas between 100A Street and to the Civic Centre, including portions of the latter. Slow, but continued office development should be planned for the area between 103rd and 105th Streets, north of Jasper. Areas north of 103rd Avenue, between 101st and 103rd Street should be reserved for eventual and possible long term office and retail expansion.

Within the near future (and with land assembly) it would appear that the greatest concentration of multi-purpose office development should be located in a band extending around the east and south edges of the shopping-retail core, extending from the Milner building on the west, to the Macdonald Hotel on the east, and north to Woodwards and the YMCA. Office buildings proposed to be built near the CNR would be a northern and somewhat detached extension of this activity.

Principles for the high-density, multi-purpose office Area Many of the principles to be observed in the development of the office areas are the same as those recommended for the shopping-retail core.

For example: developments should generally be large in scale truck loading should be centralized, and located off-street - pedestrian and vehicular traffic should be separated - the best possible transit service should be maintained the environment should be pleasing

70

However, several additional principles need to be observed. These are: Parking, as recommended in the Parking Plan of the previous section of this report should be provided in connection with each major office development.

Good facilities for pedestrian circulation should be developed between major office structures and between office and shoppingretail areas.

Multi-purpose use of office sites should be encouraged to include in addition to offices, clubs, entertainment facilities, restaurants, and a wide variety of convenience retail services and stores.

Office sites should be developed to take advantage of views of the River Valley and the Civic Centre.

Substantial amounts of parking should be provided in connection with developments south of Jasper Avenue, as indicated in the Parking Plan.

In short, it is essential that shopping-retail, multi-purpose office and civic centre activities not be considered separate, unrelated developments. Rather, they should be planned and built as integral parts of a whole. These activities depend on each other for support. If integrated and tied together, they will prosper. If separated, they will weaken, and will be less and less able to maintain themselves.

The Rationale for Large-Scale Development

There are a number of reasons for promoting and advocating largescale development in the Edmonton Central Area. "Large-scale" means the integrated planning and development of not less than a half city block, and preferably a whole city block. Development need not occur all at once, but it should be planned at once, and should be carried out within no more than, say, five years.

Some of the advantages of large-scale development and some of the problems of small-scale development in a central area are:

Advantages 1. Integrated parking: With large-scale development, it is possible to plan and provide parking as an integral part of the commercial, hotel, office or other buildings being constructed.

The integration of parking into such structures has a number of advantages: - It places parking in an intimate relationship with the

LI 71

destination of people, usually allowing them to reach it by simply walking through a door or with an elevator ride.

- It allows the use of the least desirable portions of a block and of a building for parking, such as the below-ground levels, the building interiors.

- It allows the creation of larger parking facilities, which are easier to use and which are more efficient to build and operate.

It allows flexibility in the use of parking space, usually permitting it to be converted to storage or to other uses if and when needed.

2. Efficient building design: It is broadly recognized that for commercial buildings to be efficiently built, maintained, and operated, they should have relatively large floor areas. For office buildings, this means that typical floors should be at least 20,000 (and preferably 30,000) square feet in area. Some of the advantages of larger buildings are: - Management has greater flexibility in the location of partitions and in the creation of offices, stores, and other rental units of various size.

- Large, efficient spaces can be created for large office and retail activities.

Various qualities of space are created (e.g. interior and exterior), allowing a matching of quality to need. (For example, plenty of interior space is available for storage.)

- A variety of efficiencies in building maintenance, heating, elevator usage, etc., can be realized.

3. Creation of pedestrian facilities: With development at the scale of the half-block or block, it is possible to create built-in, weather-protected, pedestrian facilities as part of basic building plans. In some cases (such as in a department store) the aisles and spaces of the establishment provide a means for pedestrian movement. In others, interior arcades can be built, criss-crossing the block, as a part of the basic corridor systems of the buildings. Pedestrian facilities created in this manner usually cost the public nothing, increase the freedom of pedestrian movement many times, and create values for the building owners and businesses involved.

4. Reduction of pedestrian-vehicular conflicts: With only one or a few properties per block, it is possible to consolidate vehicular access into one or two locations. This eliminates the need for numerous curb cuts and vehicular crossings of pedestrian walks. In this way, much of the nuisance and danger of vehicular sidewalk crossings can be eliminated.

5. More flexible building siting: When larger sites are used for building development, flexibility is gained for the siting of

major building elements. This flexibility makes it possible to create plazas, sidewalk arcades, landscape areas, and other features that are not possible on smaller sites. Also, it permits building towers, entrances and other key features to be located for maximum aesthetic and functional effect.

6. Multi-purpose use of sites: Large sites lend themselves well to development for multi-purpose use. Thus, a particular site could easily contain parking, retail and retail service activities, major offices, cafeterias, restaurants and private clubs.

Such multi-purpose development of land in a central area allows many related activities to be located close to each other, and allows extremely efficient use of land. Both of these qualities are essential to a good downtown.

1 1

7. Special pedestrian facilities: Large-scale development can justify and support the construction of special, weatherprotected facilities between buildings and across streets.

Whereas it might not be feasible to build a special pedestrian tunnel or pedestrian bridge across a street to connect two small buildings, such construction is possible and is economically justified between large-scale developments. Thus, in a second major way, large-scale development can help in the creation of facilities for convenient and comfortable pedestrian circulation.

8. Consolidated service and loading: In the development of a large parcel, it is physically and economically possible to develop special, interior (presumably underground) truck loading and service facilities. Often, one set of such facilities can serve an entire block. This makes truck loading and service easier, eliminates back lanes, eliminates curb loading for trucks, reduces the number of curb cuts, and thus the number of pedestrian-vehicular conflicts.

Problems

1

To a large extent, a statement of the problems of small-scale development is the converse of the advantages listed above. In other words, many of the problems could be stated as: Scattered, inefficient, unrelated parking Inefficient buildings Lack of good, weather-protected pedestrian facilities Many curb cuts and pedestrian-vehicular conflicts Lack of plazas, sidewalk arcades, etc.

Much space devoted to truck loading and service, including curb loading

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However, when only small parcels are available for development, a number of fairly unique problems arise. Some of these are: 1. Unbuildable lots: When land parcels cannot be consolidated, odd-shaped or odd-sized lots will frequently remain either undeveloped, or will be developed with small and marginal buildings. Once such lots are hemmed in by substantial development, the chance they will be redeveloped is very slim. Often they remain as eyesores or "dead spots" in an otherwise strong area.

2. Poor building locations: When sites that would permit efficient development are not available in key locations within a central area, builders wanting to proceed with new construction will move away from the central area (where they might really prefer to be and where they should be) to areas where sites of suitable size can be obtained. This practice destroys the compactness that is desired in the location of major office and retail functions, thus reducing the over-all attractiveness and serviceability of the central area as a whole.

THE ILLUSTRATIVE RETAIL - OFFICE CENTRE AND THE CIVIC CENTRE PLAN

m1=0

[1 O/S Map]

The Illustrative Retail-Office Centre:

The Illustrative Plan has been prepared to show how the RetailOffice Centre might look if the foregoing planning principles were followed. It is not a definite plan; it is intended only to illustrate - to serve as a basis for thought and discussion, and only indirectly to action.

Although they are only illustrative, a number of features in the plan will have great potential value to the area: 1. Adequate, well-located parking... .shown illustratively near Hudson's Bay, Eaton's and Woodward's. Additional parking (not visible in a plan view) would be provided as part of proposed building developments in several locations, including the new public library, new hotel, new office buildings in the Civic Centre Area and new building groups along 102nd Street.

The plan shows how the principle of locating key patron and shopper parking around the edges of major developments might be achieved.

2. Improved Pedestrian Facilities... .shown as widened sidewalks and malls along portions of 101st and 102nd Streets and 101A Avenue; and as pedestrian bridges crossing at various points - Jasper Avenue, 100th, 101st, 102nd, and 103rd Streets.

Not visible in the plan (but illustrated in sections to follow) is a close network of pedestrian arcades along building faces and through blocks, as well as interconnected corridor systems below and above ground level.

3. Greater compactness and integration of related activities... .shown by the suggested rebuilding of several blocks to greater intensity, with new multiple levels of retail space and parking, new office structures, and a suggested multiple use of key central sites.

4. Improved access and circulation... .shown by a widening, realignment, and improvement of several streets. (Improvements in access would be primarily achieved by improvements in the major street network outside the core that would divert through traffic from the area and thus leave additonal capacity for access. Such traffic now constitutes 607 of all traffic on downtown streets.)

5. Diversion of through traffic... .shown by a proposed interruption of 101st Street, currently a major through-traffic carrier.

(Such an interruption could not be made until suitable capacity is provided elsewhere.) Through traffic would also be encouraged to move at the edges rather than through the core by street improvements outside of the area, and by the location of parking as indicated.

6.Improved Transit Facilities... .shown by special transit malls on portions of 101st and 102nd Streets. Improvements to bus movement would also result from special design of streets and the provision of special bus lanes. (Illustrated in Figure 5 ) Not shown, but to be considered for eventual construction, would be special facilities above or below ground, for exclusive use of transit vehicles.

7. Emphasis of the River View... .shown by the proposed siting of several major buildings to take advantage of views of the River Valley, by creation of plazas and promenades along the bluff, with these also leading into the core along 100th and 102nd Streets.

8. Consolidation of loading and service facilities... .shown in the proposed consolidation of blocks and elimination of lanes. (It is recommended that as major parcels are redeveloped, underground or interior facilities be supplied to accommodate the service and loading requirements of the entire block in which they are located.

Lanes and curb loading cannot be eliminated until such facilities are provided.

9.Pleasant, Attractive Appearance... .shown in the proposals for malls, plazas, parks, promenades and landscaping. Not evident'in the plan view -- but very important -- would be attention to details of pavement design, lighting and street furniture.

10.Large scale development... .shown in the illustration of extensive and coordinated redevelopment of several areas-one bounded by Jasper and 102nd Avenues, 102nd and 101st Streets; another by Jasper and 100th Avenues, 101st and 103rd Streets; and in lesser detail for some other blocks. In many respects this is the most important principle illustrated; it is only through large-scale development that most of the other principles and objectives can be acheived.

Sketch Plans

To clarify further the possibilities of large scale development, sketch plans of building arrangements in the two key core blocks have been prepared. These include floor plans of one level below and one level at grade, an aerial view of the overall illustrative plan and several perspective views.

These sketches show how a number of the advantages of large scale development might be achieved. For example: - The lower level plan shows how a continuous, weather-protected pedestrian connection might be created, linking together several of the core area blocks, and integrating virtually the whole of the retail area. (Although this connection is shown at the lower level,

77

102nd STREET MALL—ILLUSTRATIVE PLAN

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81

102nd STREET MALL - PERSPECTIVES

"View looking east across plaza."

"View of sunken plaza from lower level."

"A suggested Interior Court north of Jasper Avenue."

82

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it might be developed at an upper level as well).

- The ground level plan shows how freedom of pedestrian movement could be achieved by creation of a fine network of arcades and open store aisles through building blocks.

- Large quantities of parking are shown in the interior and low levels of both blocks.

- Consolidated, off-street loading facilities would be provided in each development, eliminating back lanes and curb loading, and giving weather protection to such loading activities.

- An active, multiple-use plaza is proposed, and buildings are grouped about it to take best advantage of open space and views. (These are the concepts first developed in modern times in Rockefeller Centre, in the 1930's)

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Other interesting, though not essential, features of the illustrative plan include: - Open and enclosed plazas, depressed to bring light and openness to the lower level walkways and shops. In winter the outside plaza could be covered with transparent materials to make an attractive, weather-protected area for skating or other activity.

- Extensive window openings on the press room of the Edmonton Journal, to make the excitement and interest of printing activities an important part of the central scene. This lends emphasis to the central communications function of the core-nerve centre for the vast northern distribution area.

- A feature restaurant at the south end of the 102nd Street mall and plaza, overlooking the river and plaza activities, and producing an unusual, interesting building in this landmark location.

Obtaining Large Scale Development

The proposal of new developments at the scale shown will require concerted and determined action to assemble land and assure developers for the facilities proposed. The effort required might seem unrealistic - beyond the scope of what might be achieved in Edmonton. However, it is important to recognize four essential facts: 1. Piecemeal development and redevelopment of core area blocks cannot produce the conditions that are needed to make this area the vital heart of a great city and region. Without redevelopment of key areas on a substantial scale, buildings and activities will be

83

spread so far apart that the area will no longer function satisfactorily as a centre for shopping and business operations: walking within the area will become impractical and undesirable the intimate, multiple, face-to-face contacts so essential to an effective central area will be lost. The inevitable result will be a weak downtown and a poorer, less attractive Edmonton.

2. The scale of the opportunities for replacement and new construction in Central Edmonton is substantial. Properly staged and channeled into such coordinated projects, there is every reason to believe that the potentials will support the type and size of development shown. If grouped together, the major developments of the past five years (eg: the Milner, Professional, Financial and Esso Buildings and the Caravan Motor Hotel) could have produced a very dramatic and attractive project, and could in concert have supported many of the desirable features cited herein.

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3. Because of the need for, and the logic of, large scale projects have become common in many cities similar to Edmonton. Some of these projects are privately sponsored and carried out; most of them involve a combination of public and private effort.

4. The precedent for large scale redevelopment is being established in Edmonton in the Civic Centre Area. The need for such action is just as urgent in other parts of the central area; and the values at stake are equally great.

Summary

The Illustrative Plan means nothing, in itself, it is only a reflection of principles-principles that must be observed if Central Edmonton is to thrive and to fully serve the people of the area and region. Constant attention and broad community initiative will be required to carry these principles into being. The plans herein should be considered only a start.

84

• •

"Public open spaces are focal points of downtown activity, combining pleasure, excitement and variety. Summer fountains and outdoor cafes are replaced by an ice skating rink in the winter."

(Location: New York (Rockefeller Center), Courtesy: Rockefeller Center, Inc., Photographer: Edward Ratcliffe)

1

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85

"Large scale development lends itself well to outstanding design and multi-purpose use. Kaiser Center includes administrative headquarters, retail stores, parking garage and beautifully landscaped roof garden for employees and the public to share" (Location: Oakland, California, Architect: Welton Becket and Associates, Landscape Architect: Osmundson and Staley, Courtesy: Kaiser Center, Inc.) "Special, weather protected facilities between buildings and across streets create safe, convenient and comfortable pedestrian circulation and improve vehicular traffic on streets below.

(Location: Minneapolis (North Star Center), Courtesy: Baker Properties, Inc., Photographer: Norton and Peel)

86

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"Large-scale development creates opportunities to achieve a totally new environment, efficient use of land, and integrated design objectives.

(Location: Baltimore, Maryland(Charles Centre under construction) Syracuse, New York (Community Plaza - under construction))

LI

CHARLES CENTER CIVIC CENTER SITE OUTLINED AT RIGHT

87

THE CIVIC CENTRE

uy t .cr The Civic Centre area which is a vital part of the central business district of Edmonton has undoubtedly received more detailed study over the past few years than any other part of downtown.

Sparked by City officials and supported by Edmonton citizens, a Civic Centre plan essentially based on plans submitted by Webb and Knapp of Canada Limited was adopted by City Council in June of 1962.

The essential objectives incorporated in this plan were stated as follows: "To enhance City Hall with a fine Civic Park, lending beauty and dignity to the centre of Edmonton.

ii:

To house governmental and cultural agencies on sites best suited to their growing needs, their purpose, and their importance in the community.

To strengthen the existing downtown retail activity and encourage its expansion.

To realize the full potential for commercial development within the framework of ordered growth.

To create a dynamic urban centre, giving form to the city and a richer life to its citizens."

Further detailed studies of the Central Business District incorporated in other sections of this document will have their affect on the Civic Centre plan. In evaluating these modifications the following should be kept in mind. *"It should be clearly recognized that the essence of planning is not merely in catching up with reality although it is part of it. Its chief value lies in anticipating and guiding future events.

Planners cannot predict with certainty the shape of things to come nor the technological and other influences that will affect that shape. However, they can and do try to understand the factors that have influenced past development. They recognize and give full weight to existing trends in the attempt to forecast future requirements. Because of this, planning is not a rigid set of rules, it is rather a flexible framework not to be bent or Misted to suit every individual whim but to be molded to accommodate desirable and acceptable objectives as they emerge."'

* W. Harold Clark, Chairman, City of Toronto Planning Board.

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88

FIGURE 8: EDMONTON CIVIC CENTRE PLAN

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89

Referring to Figure 8, the following is a description of the modified plan. City Hall remains as the dominant feature of the entire Civic Centre set off and enhanced by Civic Centre Park. The area from 102nd Avenue between 99th and 97th Streets and north to the railroad tracks has been reserved in its entirety for government and related facilities.

South of 102nd Avenue between 99th and 97th Streets is the location of the proposed Coliseum together with the East 25 storey office tower. *

This location of the Coliseum further enhances the site of the proposed convention hotel located on the block immediately south of 101st A Avenue. It has also led to reconsideration of the location of the City Library which is now proposed to be located in the block immediately north of the Hotel presently occupied by the City Market. This would allow the library to become a part of after hour activity created by the Coliseum complex as well as maintaining its proximity to the office and retail centre of the City.

-7

The area west of City Hall and north of 102nd A Avenue remains as Recreation and a Cultural centre including the art gallery, the recreation centre and the proposed location for the Canadian Legion.

CIVIC CENTRE PARK The necessity of maintaining 102nd A Avenue as a part of the downtown traffic pattern will mean the bisection of Civic Centre Park in front of City Hall and has required a modification in the Park design.

In order to maintain the continuity of the Park with City Hall, it is proposed to lower the grade of 102nd A Avenue between 99th and 100th Streets to allow for an overhead pedestrian connection from the plaza in front of City Hall to the remainder of the park. This connection would be further enhanced by an underground pedestrian way under 102nd Avenue connecting the park with the library parking garage complex to the south.

J

The design approach would be to create an informal, interesting and relaxed atmosphere. The suggested informality of the City Hall together with the basic Canadian distrust of monumental design elements expressing government should determine the design of the Park itself. Variations in levels, pattern and foliage together with the introduction of shelters combined with innumerable view points created by these variations would make this park a most attractive place for the public to visit. In addition to some grassed areas it would contain tertaces, pools, fountains and settings for sculpture enhanced by the shade and protection of larger trees and shrubs. * Reference Item 5

J

90

The high concentration of workers in the immediate area would be able to take advantage of this priceless amenity within the centre of the city. Such a park would also serve as a very attractive and desirable tourist attraction and as an expression of the informal hospitality of Edmontonians.

It is proposed that the present plaza in front of City Hall be extended to 102nd A Avenue to provide a physical and visual link between City Hall and the remainder of the park. The elevation of certain areas above sidewalk level do provide some appreciable visual and aesthetic separation between the bustling vehicular traffic surrounding it and the more leisurely internal atmosphere. By means of wide and pleasant approaches this super elevation would not in any way suggest a separation between the sidewalk pedestrian and the park itself. Since the park would be accessible by foot over its entire area, there would be an encouragement for pedestrians to take advantage of this fact during their trips from one side of the Civic Centre to the other.

GOVERNMENT AREA

The government area to the east of the Park as previously mentioned would contain the Courthouse, the Landtitles office, a Municipal Office Building and a Legal Building together with the present Police Station and the Magistrates Court.

The massing of City Hall tower would suggest that a court be provided at the east side of City Hall to balance a similar court planned for on the west side. This would create a setting for a new court house building which would be orientated both to the Civic Centre on the west and to 97th Street on the east. It would be flanked on the south by the new Land Titles building and on the north by a Municipal Office Building.

Indicated immediately north of the present Police Station is a Legal Building which would provide office space for those businesses and professions which deal fundamentally with the judiciary and would confine these activities to a very compact and efficient group including all provincial and municipal courts.

LIBRARY

The Library is located on the north side of the present market square over an underground parking garage. This positioning would allow

91

the development of a plaza on the south side between the library and the proposed new hotel. This plaza would enhance the openness that has been presently planned for the main entrance to the Coliseum and create an additional downtown square some two blocks long terminated on the east by the mass of the Coliseum itself. This library location would put it within easy pedestrian range of the existing major retail area and in particular redeveloped 100th A Street and the pedestrian malls indicated on 101st A Avenue.

Studies have indicated that the requirements of the new city library for a city of the size of Edmonton is in the neighborhood of 180,000 square feet. A properly planned building of this floor space would mean full development of this particular site taking into account practical and aesthetic limitations. Since the library mass would not compete with City Hall it could provide a very handsome southern anchor for Civic Centre Park.

ART GALLERY

Investigations have been undertaken to determine the feasibility of the Edmonton Art Gallery being accommodated in the existing Land Titles office. At the time of this writing it appeared that this was within the realm of possibility. It would mean quite extensive remodelling but could provide the Edmonton Art Gallery with adequate space for the foreseeable future. The open space indicated to the north could be partially developed as a sculpture plaza and would contain the main pedestrian access route from City Hall to the main retail centre as shown on the accompanying pedestrian traffic patterns.

RECREATION CENTRE

The relocation of the Art Gallery would allow the Recreation Centre to be relocated on the north east flank of this block allowing it to take advantage of the openness provided by the west City Hall court. This positioning would also allow a visual penetration from 101st Street into the Civic Centre area with the Legion Building occupying a site on the north side adjacent to the Recreation Centre. This block is of sufficient size to accommodate a possible future museum which would round out the complex.

This brief description indicates how Edmonton's Civic Centre can be developed within the Central Area Plan.

1

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"The downtown area of Edmonton, showing portions of the Government Centre, the City Centre Housing Area and the Central Business District. Isolated high-rise apartments have been erected on locations most favorable to economical site consolidation."

93

CITY CENTRE HOUSING AREA

The City Centre Housing Area contains approximately 90 acres. This district is bounded generally by 100th Avenue, 106th Street, 101st Street and 95th Avenue. Close to 13 acres in this area have recently been developed for multi-storey apartment buildings, and it would appear that almost 68 acres will become available for new development. Under total redevelopment, the district has a potential accommodation capacity for approximately 17,000 persons.

11

At present, dwellings throughout the district are generally frame or masonry houses, converted to multiple family occupancy with room and suite rental. Isolated high-rise apartments have been erected on locations most favourable to economical site consolidation.

The primary function of this area should be for the development of high density housing in an urban setting, providing accommodation for small families and individuals. Housing in this location will appeal to persons employed in the neighbouring districts-the Government Centre, the main retail-office core, and the special purpose office district. In addition to high density residential development, institutions, compatible with the district and limited convenience services, should be allowed.

Some of the major principles to be observed in the future redevelopment of this district are: 111

a. Relationship to River Valley

1

The key asset of the area is obviously its view of the North Saskatchewan River Valley. Any planning proposals affecting the overall area as well as the individual sites should orient buildings to take maximum advantage of this invaluable and unique feature.

It should be noted that the existing redevelopment pattern of isolated tower blocks and vertical slabs, oriented to the existing street pattern and not to the natural slope contours, will not achieve this principle. In order to meet this objective, redevelopment on a block basis is imperative to properly coordinate building sizes, locations and heights.

With the maximum utilization of the River Valley view, every encouragement should be given to the provision of useable, open space for the passive and active use of the inhabitants of the area. Following the present practices, ultimate redevelopment would not provide any areas which could be considered adequate as play space for small children. However, with the availability

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96

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of the nearby recreation facilities of the River Valley and due to the high cost of land acquisition, it does not appear realistic to establish playground facilities in this area.

b. Proximity to Employment Centres.

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This housing district is favourably located between two major employers, the Government Centre and the Central Retail-Office District. It is anticipated that a large number of persons living in this area will be employed in either of the two centres and will walk to work. Good pedestrian access to each district from the housing area is therefore important. However there are two significant factors which must be carefully analyzed. The existence of steep grades, and extreme weather conditions make lengthy pedestrian movements impractical.

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c. Pedestrian Facilities.

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Pedestrian courts should be provided, and of such a size that they will provide an urban character and facilitate internal use by the residents of an associated group of buildings. Through pedestrian movement should be accommodated on street and avenue sidewalk systems, consolidating pedestrian and traffic control at street intersections.

Under the proposed traffic circulation system special attention must be given to the isolation of McKay Avenue School created by major traffic arteries. To provide safe access for school age children, extensive pedestrian crossing improvements must be considered.

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d.Vehicular Access and Circulation.

The problem of providing an adequate internal vehicular circdation system for the area is compounded by two factors:(1)The proximity of the proposed limited access roadways and the necessary use of certain streets within the area as part of the major circulation system for the Central Business District. The street system must be developed to separate general downtown and local traffic, helping to preserve the traffic-carrying capacity of the major streets and at the same time protecting the residential character of approach streets serving individual buildings.

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(2)The existing grid pattern is not oriented to the contours of the river bank, creating access difficulties to many individual sites. In several instances, these buildings are dependent upon utilizing back lanes for access. This makes the principle of

98

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large scale development difficult to achieve (i.e. the consolidation of all or a major part of a particular block). Most lanes in the area are presently narrow, steep, and dusty, creating potentially hazardous street connections. If a lane is to be retained, every effort must be made to up-grade the quality by widening, paving, and placing wiring underground.

To obtain sufficient flexibility and to allow anticipated building projects to proceed in the near future (before construction is conmienced on recommended roadway improvements), retention of as much of the existing street system as possible is necessary.

This will also serve to protect existing local services, such as street paving, lighting and well established tree boulevards, and will provide a minimum disruption to the existing homes in the district. Public transit service will be required to connect the area with the Government Centre and the Central Business District and should be easily accommodated on the proposed local circulation pattern.

e. Off-street Parking.

11 1 1 1

ii ii _

Adequate off-street parking should be provided, serving individual buildings or associated groups of buildings. The present practice of providing paved lots at surface level is resulting in an excessive percentage of redeveloped sites devoted to the storage of the motor vehicle. Valuable open space for landscaping, play areas, relaxation and an attractive environment is lost as a consequence. Encouragement should be given to private developers to provide underground or elevated parking structures, leaving some open space for use by the inhabitants d the buildings. Fortunately, the contours of the land favour the use of underground parking in this district. The local streets are used extensively by Government and downtown employees to park their vehicles during working hours, escaping parking fees at metered street stalls, on commercial parking lots. The district should not be penalized by a lack of parking facilities in the neighboring areas. Parking controls should be imposed to alleviate this problem.

f. Comprehensive Redevelopment Redevelopment should be encouraged. With large scale development, it is possible to provide parking as an integral part of the building and to: - restrict the car to the periphery of the block - create attractive pedestrian facilities such as pedestrian courts

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- separate pedestrian and vehicular areas and conflicts

99

- consolidate loading and service facilities - obtain greater flexibility in the siting of buildings t 11

- accommodate other appropriate uses within the site

g. Aesthetic Qualities.

Careful architectural design and landscaping is necessary to achieve a pleasing urban character. Preservation of existing trees and new planting is important to soften the otherwise cold expanse of concrete, pavement, and masonry walls. It is hoped that varied forms of housing will be constructed to provide a choice of accommodation, an interesting building relationship and urban character. The continued development of land in isolated, piecemeal fashion will result in an uncoordinated collection of buildings and shapes. Regulations should be established to protect the visual dominance of the Central Core and the Government Centre.

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99

serving individual "Adequate off-street parking buildings or associated groups of buildings.

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- create attractive pedestrian facilities such as pedestrian courts ...

- restrict the car to the periphery of the block."

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"Careful architectural design and landscaping is necessary to achieve a pleasing urban character ... oriented to the natural slope contours ... rather than existing street patterns."

104

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THE PEDESTRIAN IN DOWNTOWN EDMONTON

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Introduction

7

The efficiency and economic strength of downtown Edmonton depends in no small measure on how well it operates as a pedestrian centre.

However people reach downtown, it is as pedestrians that they circulate in the thousands between offices, stores, restaurants, hotels and other features of the area. As downtown Edmonton grows both in concentration of activities and size there will be an increasing conflict of movement between pedestrians, automobiles and surface transit. Left to follow its own course this would result in undermining the economic strength of downtown as the area becomes increasingly difficult to move through.

Recognizing this situation in its human as well as economic and traffic aspects, the downtown areas of a number of major European cities are now being replanned on the basis of separating the pedestrian from the vehicle. In Britain, Holland, Scandanavia and Germany it is now basic planning policy to separate "feet from wheels" within the city centre. Nor has the need to do this been ignored by private developers who have been quick to see the economic advantages that accrue to building commercial complexes that incorporate pedestrian systems free from conflict with the automobile.

Now the concept is beginning to spread throughout the United States.

In revitalizing the downtown areas of Hartford, Philadelphia, Baltimore and Washington these cities and private developers are undertaking rebuilding programmes in which the separation of pedestrians and vehicles is a basic and essential consideration.

The same need applies to downtown Edmonton with the addition of one other special consideration - the climate. The long cold winter coupled with the heat of the summer months requires that for his comfort and convenience the pedestrian should be able to walk throughout downtown protected from inclement weather. Standing at a street intersection in the middle of winter is not pleasant and should be minimized.

With improved accessibility to and from the area, the key to the attractiveness and economic strength of downtown Edmonton over the years to come lies in the joint public and private implementation of a comprehensive pedestrian system, separated from the vehicle and independent from climatic conditions.

105

FIGURE 9: FREQUENCY OF PEDESTRIAN TRIPS RELATED TO NUMBER OF BLOCKS WALKED bored on 10

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FIGURE 10: (With transit routes dispersed throughout downtown)

PEDESTRIAN TRAFFIC IN DOWNTOWN EDMONTON BETWEEN 43%41)53° P.M. LEGEND: TRAFFIC IN 1963 TRAFFIC IN 1980 (IF TRANSIT FACILITIES ARE DISPERSED TI4 ROUC.I4OUT DOWNTOWN

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PEDESTRIAN TRAFFIC IN DOWNTOWN EDMONTON BETWEEN 4"A.No55°P.M. LEGEND: K/z//,/,, TRAFFIC IN 1963 TRAFFIC IN 1980 (IF TRANSIT FACILITIES ARE CONSOLIDATED ON loRTFAVENUE.)

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1963 and 1980 Pedestrian Volumes At the present time pedestrians are confined to the existing sidewalks which vary in width from 12 to 16 feet and are quite exposed to the prevailing climate. An analytical study was undertaken in April 1963* to determine pedestrian traffic on sidewalks, where people were coming from, how far they walked, purpose of their trip and how long they stayed. From this knowledge of pedestrian behaviour it was possible to estimate pedestrian traffic in 1980 subject to the conditions of the proposed land use.

Figure 9 shows the frequency of pedestrian trips as related to the number of blocks walked. It should be noted that shoppers and patrons had to walk longer distances than workers, indicating that the choice parking spaces had been taken up by employees.

Figures 10 1 11 show pedestrian volumes in peak hours both for 1963 and as estimates for 1980. The projected 1980 pedestrian volumes are premised on the implementation of the general plan and are shown for two alternative plans of public transportation. By consolidating transit facilities on 102 Avenue, pedestrian traffic may exceed 12,000 people per hour, a figure approximately 3 to 4 times the maximum flow today. By dispersing transit facilities among the major east-west and north-south streets, in the case of the second plan, the pedestrian traffic will still be heavy on 102 Avenue and may exceed 9,000 people per hour.

1 IV

These figures indicate the severe congestion that will arise at street intersections and along sidewalks. They emphasize the need to remove, by separation, the many sources of pedestrian/vehicular conflict which will otherwise arise to the detriment of the downtown area. In particular, pedestrian traffic at the present time has reached the point at several locations where present facilities cannot adequately meet the demand.

Methods of Pedestrian/Vehicular Separation

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1. On a short term basis, pedestrian facilities can be improved by widening sidewalks and incorporating arcades in the front of buildings, being remodelled or rebuilt. Whenever possible these improvements should be implemented, in that they will generally improve the comfort of the pedestrian.

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Neither method offers a long term solution since the sources of conflict between pedestrians and vehicles have not been removed at street intersections. In the long term, conflict can only be reduced by separation either horizontally, vertically or a combination of both.

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2. Horizontal separation involves the closure of streets to vehicular traffic, thereby converting streets into pedestrian malls. The large regional shopping centre is an example. This method is not considered a practical

*Reference Item 6

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overall solution for downtown since numerous street closures would result in a serious disruption of vehicular traffic.

In earlier sections of this report, several short malls have been proposed. Two of these, 101st Street (between 102nd and 103rd Avenues) and 102nd Street (between Jasper and 102nd Avenues) have been proposed as transit malls complemented by pedestrian and landscaping amenities; while 102nd Street between Jasper and 100th Avenues has been suggested as a full pedestrian mall and plaza in conjunction with the comprehensive redevelopment of the adjacent blocks. A second exclusive pedestrian mall has also been suggested for 101A Avenue between 100th and 101st Streets. Several smaller pedestrian promenades and courts as plazas have been suggested within the two key core blocks of major development dealt with in the Illustrative RetailOffice Centre Plan.

3. Providing the pedestrian with a completely separate level from the automobile traffic provides the most suitable long term solution, though difficult to implement. It should not be expected that the revamping of the present pedestrian and vehicular circulation system can be undertaken overnight. Nevertheless many examples in the U.S.A. and Europe indicate that a start can be made to progressively provide an alternative level for pedestrian circulation.

In most plans for other cities, the pedestrian has been provided with a second-floor level running through the middle of street blocks and across streets at a height of some 15 or 16 feet. Except in special instances it is more desirable to elevate the pedestrian to a secondfloor level. There is a natural psychological barrier on the part of people to being placed underground. In a few instances, a level below ground has been provided to connect, underground, the basements of major buildings, parking facilities and commuter railroad platforms. Penn Centre in Philadelphia is an example of how this can be accomplished.

While it is possible for the pedestrian to move at different levels within a downtown area he should not be expected to constantly be moving between different levels within short distances. Rather, there should be an uninterrupted pedestrian level over a sizable portion of the area which can then be designed to interchange with another level at a suitable location.

The Plan 1. In the area west of 100 Street it is recommended, as a long term solution, that an uninterrupted pedestrian system should be planned at a second-floor level.

This could be implemented in the near future by linking Eaton's, Woodward's and The Hudson's Bay Company stores with enclosed overhead bridges and,in turn, into their proposed parking facilities and the bus terminal.

The three department stores would benefit by pedestrian circulation through their premises at a second-floor level, while at the same time permitting pedestrians to circulate within and between buildings, free from inclement weather.

In time, as the area south of Jasper Avenue is rebuilt (preferably

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on a comprehensive block to block basis), these second-floor level pedestrian ways could be progressively extended eastward and southward to Jasper Avenue and on to 100th Avenue and Macdonald Drive. At the latter point it would provide an exciting outlook over the North Saskatchewan River. The pedestrian would be able to move free of the automobile and inclement weather between parking facilities, offices and retail outlets. Undertaken with a high degree of architectural skill, such a system could be made to enhance the downtown area.

2. The Civic Centre area calls for a different treatment. When completed, this portion of downtown will be more open and spacious. A system of elevated walkways would detract from, rather than improve the open space within the Civic Centre Square. Since the Coliseum Complex and major parking facilities adjacent to the Civic Centre will have major underground facilities, it would be more suitable here to provide a lower level pedestrian system. Protected sunken walkways could connect the Coliseum Complex, the new convention hotel, underground car park, library, Civic Centre Buildings and the CNR property. By sinking the Civic Centre Park around its edges, and at points across it, a sunken walkway girding the park could be thus permitted daylight and landscaped views, penetrating the walkways from the side. There would thus be little or no feeling of being in a tunnel. Connections could be made beneath surrounding streets to adjacent buildings and the proposed transit station.

Where the proposed upper and lower pedestrian levels come together there should be an area of travel at ground level, so that there is no immediate necessity to ascend or descend through three levels.

Summary

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The gradual revamping of the pedestrian circulation system as recommended may at first appear to be too radical. The implementation of similar proposals has nevertheless been achieved with success in a number of cities in the western world. The resulting benefits to both vehicular and pedestrian circulation have shown the economic advantages of this form of integrated building and circulation renewal. At the same time a previously unexperienced and exciting third dimension to the downtown area has been introduced.

Figure 12 shows in a simplified form the suggested solution for pedestrian circulation. It is not intended to completely displace the present sidewalk system. This would remain as an alternative walkway, for the choice of the individual. As examples of other cities illustrate, the gradual implementation of new levels for pedestrian movement would find increasing public favour and in time the existing sidewalks would enjoy a use free from congestion.

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FIGURE 12: SUGGESTED 1980 PEDESTRIAN CIRCULATION PLAN

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RAPID TRANSIT In earlier sections of this report, dealing with "Circulation, Parking and Transit", proposals have been made for considerable improvements to handle the anticipated flows of vehicular traffic. Briefly, these would be accomplished through the provision of 14 additional traffic lanes, and the removal of practically all the non-downtown traffic to the proposed freeway bypass ring. The parking plan recommends the locations for an estimated 23,400 automobile storage spaces associated with this traffic. Initially, the provision of special, exclusive transit bus lanes on several principal downtown streets (Jasper Avenue, 100th Street, 101st Street, 102nd Avenue and in the proposed 102nd Street Mall) is recommended to provide the "route capacities" for a greater number of persons using public transit when travelling to and from the Central Area.

These necessary proposed improvements will, however, be required to operate close to their capacities. While economically advantageous, this provides little reserve for untoward events or further growth (the planned transit facilities, for example, will be required to handle more than three times the 1961 peak hour trips -- 14,800 trips to or from the CentralArea in 1980 compared to a figure of 4,700 such trips in 1961). Growth will continue beyond 1980; peak hour demands may be expected to become more severe with increasing office employment; special peak activities (such as Christmas shopping) and the vagaries of adverse weather conditions cause severe, if short term, traffic and transit loadings.

As a consequence of these particular concerns, the design of a modern rapid transit facility has been undertaken. Criteria for such a system were studied and established, based upon recognition of these principles: 1. No large city can place sole dependence upon a system of roadways to supply and safeguard its future transportation needs.* 2. Public Transit can be provided at less public expense than new street facilities, to handle additional peak transportation requirements.

3. (a) When it becomes necessary to reduce the interferences between surface traffic and transit bus operation, this can be most effectively accomplished by displacing a portion of the transit system rather than the automobile traffic. (b)It is most likely that this separation should be made by placing such transit operations below the surface, in a subway, to increase values in downtown Edmonton without removing taxable land. (c)This subway facility will also substantially reduce the interference between general pedestrian movement and alighting, boarding or waiting transit passengers.

*Reference Item 7

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4. Public transit can be made to attract patronage through the development of convenient, comfortable service. This has been demonstrated by the number of drivers who do not need the use of their autos during the business day and prefer to use the transit system.

5. Planning of a future subway at this time will enable its later construction with a minimum of investment and interference to other properties (two major public construction projects have recently been built to avoid the necessity of a future relocation of these services as required by the preliminary subway designs, thus saving an estimated half-million dollars and the later temporary dislocation of these services).

6. The early development of performance criteria and design standards provides the opportunity to obtain the most attractive and suitable equipment for the purpose, when the system is constructed.

Brief Description Of The Rapid Transit Plan** The studies indicate that a subway alignment along 102nd Avenue, as shown in Figure 8 , will most effectively serve the developments within the Central Area. In some instances, direct connections between the public mezzanine station areas and major buildings will be made. Other, special pedestrian access ways may be provided from Jasper Avenue and other selected locations.

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Technically, 102nd Avenue appears to present more favorable construction conditions, both from the standpoint of subsurface conditions, and from the disturbances likely to be encountered during the actual construction of the subway and the stations (the subway itself would probably be constructed by tunnelling, but the mezzanine stations will necessarily be constructed by some form of cut-and-cover method.)

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The subway section will serve major, long term parking areas located on the perimeter of the Central Area. Three branch lines are proposed to fan out from either end of this central subway section, serving other areas of the city through local bus services, park-and-ride station areas and direct pedestrian station access. The complete system will still require some transit bus services in the Central Area, as well as in the outer areas of the city. The downtown subway section has been designed with a peak halfhour passenger demand of 15,000 to 16,000 seated passengers in mind. The ultimate capacity of this subway is considerably in excess of this figure.

Iv Reference Item 8 ** Reference Item 9

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SECTION VI

DESIGN OBJECTIVES

General Character Gateway Areas River Bluff Lighting Signs Street Furniture

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SECTION VI DESIGN OBJECTIVES

The character of central Edmonton will be dramatically affected--for better or for worse--by details of development. It is of extreme importance, therefore, that high and meaningful standards of design be applied to the many features and details of the area, as well as to the whole.

It is proposed, therefore, that standards and objectives be established for the detailed planning of central Edmonton, particularly with respect to the following: 1. General Character of Districts I

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As indicated in the section on the general plan, the various districts of central Edmonton serve various and different functions and should be designed accordingly. These differences in function should be reflected in such things as building height, density of development, building setbacks, landscaping and the like.

General design objectives for these districts are given in the section of the general plan. (Land Use and District Plan--Section IV 2. Entrance Or "Gateway" Areas The design of major entrances to central Edmonton is important in several ways. Among other things, these areas should: - Move traffic efficiently and safely, with a minimum of distraction, and offer drivers a clear sense of direction and destination.

- Be pleasant to pass through.

- Give the best possible impression and views of the Central Area; they should attract, not repel or discourage, visits to the area.

- Clearly signal to the traveler his entrance into, or his departure from,the Central Area. (Thus, perhaps alerting him to the need for different driving techniques or speeds, giving him a sense of arrival, departure or of being in an identifiable place.)

Distinctive, attractive and safe entrances to the Central Area can be obtained in several ways: - The use of a high standard of design on approach streets, including generous use of landscaped median and boulevard areas.

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- Establishment of wide setbacks of buildings along streets at entrance points.

- Creation of squares, plazas or parks, perhaps with special landscaping, fountains, flags or sculpture at key entrance points.

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- Establishment of attractive public or semi-public buildings-or other dignified development--around entrance areas. Buildings at entrance locations should, if possible, have distinctive, landmark qualities.

- Sharp restriction of signs, giving highest priority to those that give safety and directional information.

- Protection of views of the Central Area skyline from approach routes.

3. Use and Enhancement of River Bluff The proper use and enhancement of the River Bluff is an important objective to be achieved in the planning and development of central Edmonton.

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- The distinctive form of the bluff should not be destroyed; it should be accentuated and enhanced.

- Sites or "overlooks" along the bluff should be preserved from which the River Valley can be viewed. Wherever possible, these sites should be connected with a walkway or promenade.

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- Landscaped plazas or malls should extend away from overlook points toward the centres of the various downtown districts, to provide visual and psychological connections to the River Valley.

- Buildings in the River Valley generally should be low, to avoid diminishing impressions of depth and height in the valley, and to protect views of the bluff from the river level.

4. Lighting

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A properly, skillfully designed system of lighting can be a tremendous asset to central Edmonton. Dramatic and impressive effects can be created - safety, convenience, and the sense of order and direction established. The level of lighting, style and size of light fixtures and the type of lighting should be specially tailored to the needs of, and effects desired in various parts of the area. For example: - Major vehicular approach and circulation routes should be highly and specially lighted in accordance with the most appropriate standard of arterial street lighting. Such lighting should be designed to help lead people along major routes to the destinations desired. Street lighting generally should help distinguish

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the classifications of streets. If possible, approach and internal circulation routes, major and local streets, should be distinguishable by the type of lighting. Various ways of obtaining distinction -- (differences in intensity, location and design of light sources, differences in color) -- should all be explored.

- Commensurate with safety requirements, street, parking area and sidewalk lighting should be subdued in areas such as the Government and Civic Centres to obtain greater value and contrast from the exterior lighting of buildings. To the extent possible, the general lighting of such areas should be achieved indirectly, through lighting of building exteriors, landscape features, and the use of inconspicuous, shielded light sources.

- In areas bordered by show and display windows, prominence should be given to show window displays and their lighting. Relatively less reliance should be placed on direct lighting of streets, walkways, plaza surfaces and of building facades.

- The lighting of nighttime activity centres, such as theatre, hotel and coliseum areas, should receive special attention.

Emphasis should be given to the lighting of building and parking entrances, and to areas of pedestrian circulation. Again, advantage should be taken of indirect light sources - informational and directional signs, interior (visible from the outside) and building facade lighting.

5. Signs Signs are of special importance in the Central Area because of the number of people and amount of information involved. Properly used, designed, and located, signs are an indispensable part of city design.

In considering the use of signs, their basic function must be recalled: the basic purpose of a sign is to provide information.

Some signs warn of danger ("stop ahead"), some give direction ("to City Centre,") ("Parking Here"), others tell us of the virtues of some product or service.

Not all sign information is of equal importance and the value of their information varies from place to place. Along a busy, high-speed street, information signs affecting safety of travel are most important, signs giving direction are second, and information concerning the merits of products or services is probably of least value.

Signs are frequently so located as to block the light or view of buildings. They may be so designed or constructed as to frustrate the efforts of architects and designers to create civic beauty.

When signs do these things, they become a liability to business and to the public, and their function is impaired.

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Signs in the Central Area are susceptible to this because of the concentration of activity and the great amount of information and direction to be given in a relatively limited space.

It is proposed, therefore, that a policy on signs be adopted, and implemented through zoning and other devices to recognize the following: The location, construction and design of signs must be controlled and coordinated to minimize and reconcile their conflict with each other and with the interests of the public, while preserving their ability to transmit needed and desired information and instruction.

- The control of signs should vary from location to location, depending on information required. (For example, it is essential that stop signs and lights be readily visible along a street.

It is of lesser importance that a "no parking" sign be readily seen. And it is of least importance--perhaps even distractingfor the name of a generally available product to be visible from a moving car.)

The control of signs should take into account the time and duration of display. For example, it is more important that information about an election, a special celebration or a street closing be given in time to publicize the event, than information about something having no particular relation to time.

- The character of the service or product advertised affects the need for its display. For example, a small restaurant or store must sell itself over and over again, whereas a bank or professional organization may develop a clientele that returns without further identification of location or service.

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6. Street Furniture Street lighting fixtures, hydrants, signals and signs, waste containers, benches, shrubs and trees, planting boxes and similar features are the "furniture" of the street. The way they function and look affects the efficiency and appearance of the street and adjacent land development, as well as the welfare and safety of everyone passing by.

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The various elements of street furniture have usually been selected and located individually, without overall coordination of design or location. The result has often been a clutter of mismatched objects.

It is proposed that the appearance and function of street furniture should be considered as an overall problem, and a coordinated plan should be developed for the design and location of the various pieces of street furniture.

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- Individual objects, signs, etc. should be simply, tastefully and functionally designed.

- The number of objects to be placed in the street should be held to a minimum. This will call for combining objects into units or compact groups, and possibly for the elimination of some.

- Provision should be made for facilities on adjacent land to perform the functions of street furniture (streets and walks may be lighted from adjacent buildings, fire hydrants built into adjacent structures, benches built as part of a structure, etc.)

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SECTION VII

MEANS OF PLAN ACHIEVEMENT

Public and Private Financing Public Policies Planning Legislation Further Technical Studies

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MEANS OF PLAN ACHIEVEMENT

SECTION VII

Introduction

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This report has been prepared as Chapter X of the Draft General Plan which is being presented in sequence to City Council, through the While the Central Area Plan is an integral part of Summer of 1963. the planning process for the overall City, it deserves particular consideration and the expansion of principles because orthodox zoning controls and statements of public works policies alone are probably less effective as a means of plan achievement in the downtown area than elsewhere.

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The Central Area Plan deals primarily in recommending goals, objectives, and principles of land use, circulation and appearance.

The first step, therefore, towards implementing the plan is a sound understanding of the principles and aims of the plan, and what developThis is really the major step in the ments these may help to achieve.

An acceptance present initial stage of planning activity for Downtown. of these principles will provide a firm basis upon which many details can be logically developed and integrated.

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In general, the stage can be set for the consideration of desirable and acceptable alternatives which may evolve during the physical implementThe phasing and costing of public works can be underation of the plan.

The formulation of detailed public policies, consistent with the taken. plan, can be prepared and presented, and legal machinery can be drafted to implement appropriate parts of the plan.

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Public and Private Financing

The City government may be considered as the agency which will ensure that development will broadly comply with the principles of the The City, however, is directly and financially involved approved plan. in proposed public works improvements, including roads, utilities and public In this respect, the City acts as a developer and should buildings. necessarily coordinate and phase its capital works expenditure downtown, and A its capacity to pay for these improvements, with the city as a whole. careful assessment of the financial responsibilities for public and private It is considered that the interests will be required for plan achievement. proposals set forth in this plan can meet the criteria of practicality in The desirability of the cost and are physically capable of achievement. plan is further enhanced when compared with the likely results of no action or of only a partial effort at planning.

The Central Area Plan necessitates a program of coordinated public In many instances and private financiing to achieve its objectives.

private developments can enable public improvements to be made at a substantial saving to the general public, simply through the coordination In other cases, public improvement projects such of these activities. as new transportation facilities can enhance and strengthen the position of private land development in the central area.

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Public Policies.

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In the particular case of the Civic Centre area, the City's involvement is direct and essential because of the major investment already existing in terms of present and proposed public buildings, street closures and realignments, and the symbolic importance of the Civic Centre.

Where the private involvement is much greater, such as the retail core and apartment areas, the City's function may be restricted to zoning control and to implementing policies governing public transit, parking, road The problems of traffic in a rapidly growing metropolis improvements. must be solved comprehensively, and implemented, through public authority.

Traffic necessarily includes public transit and the development of a pattern of rights-of-way which will prevent strangulation resulting from congestion of the intricate movements of pedestrians and vehicles associated with Downtown.

This report indicates a transportation system where the public involvement is direct, but parking (which is the terminal point of downtown-destined vehicles) is a feature in which the public involvement must be defined by policy.

The parking terminals indicated in the Plan are an essential part of the transportation aspect of Downtown, and a study of the ways and means for obtaining this parking will need to be undertaken.

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Planning Legislation

The new Planning Act, which becomes operative on August 1, 1963, permits the City three methods of exercising control of land use: 11

1) by Zoning By-Law

1 2) by Development Schemes a

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3) by Development Control

(1) The Zoning By-Law will be applicable to many portions of Downtown where existing streets remain largely undisturbed, and redevelopment can take place upon the existing subdivision pattern without adversely affecting the principles of the Plan.

In the case of the City Centre Housing Area, the current regulations on high density apartments may be suitable after revision of such matters as height control, landscaping, open space,

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The Zoning By-Law, however, is an inadequate instrument to encourage comprehensive redevelopment on a block basis.

Zoning Districts should be prepared to adopt the major land use zones proposed under the Plan.

The types of control which can be applied are limited under the provisions of the Planning Act, but are nevertheless substantial.

Certainly, many of the powers available must be invoked in order to ensure that future development does conform to the principles of an The City should consider any zoning device available approved plan. which will encourage good design, beneficial uses and attractive building Some buildings, while similar in function, do not contribute forms. equally towards the betterment of the central area.

For example, a slim 20-storey tower block does not overshadow buildings in its vicinity to the same extent as a massive 10-storey slab building.

A building covering one hundred percent of its site contributes no open space, planting, or convenient pedestrian promenades compared to a building with equal floor area in the form of a tower and an open terrace, arcades or plazas at ground level.

Many examples exist of this variation in building form and arrangement; some contribute greatly to a desirable central area, others detract.

The City should be prepared, therefore, to put fairly strict restrictions on the development potential of sites, but to allow bonuses in the form of additional floor area and building height, for developments which contribute toward the implementation of the plan.

Some flexibility should be allowed in permitting the mixture of land use on site areas which are sufficiently large enough to suitably accommodate multiple uses.

If a substantial area of land is to be redeveloped, it is possible to have residential, office, retail, commercial and parking facilities combined and properly related to complement each other's function in an integrated manner.

(2) Development Schemes permit the City to obtain additional powers of control and compulsory acquisition of land in designated areas where it is clearly in the public interest to protect essential aspects of the Plan (such as proposed rights-of-way).

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Development Control

Until the Central Area is brought under Zoning By-Law control, the City may ensure that all developments, dealt with on an individual basis under a Development Control By-Law, conform to the principles of the Plan.

The Development Control By-Law may, itself, embody appropriate requirements from this Plan.

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Further Technical Studies Many features of the Plan will require extensive detailed technical

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study to determine their feasibility, phasing and financing.

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major types of central area development is necessary. estimates of growth rates can be better determined and will provide opportunities for economically coordinating private and public investments.

Finally, and notwithstanding the many means and techniques available to implement the plan, it is essential - above all else - to have understanding, good will and the active participation of the public, It is business and all other interests directly affected by the plan. of the utmost importance, therefore, that wide and continuing publicity be given so that acceptance can, as a consequence, be made more meaningThus the Central Area Plan can be successfully implemented ful. during the years ahead.

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TABLE OF REFERENCES

REFERENCE ITEM I 1980 Population, Land Use, Employment Projections Metropolitan Edmonton Transportation Study - prepared by Edmonton District Planning Commission. (Preliminary Projections, 1962) REFERENCE ITEM 2 Metropolitan Edmonton Transportation Study, Part II: A Land Use, Employment and Population Forecast for 1980 by the City of Edmonton Planning Department, 1962.

See also Chapter III - "Growth and Population" of the City of Edmonton Draft General Plan series.

REFERENCE ITEM 3 An Economic Study of Potential Demand For Office Accommodation in Edmonton, Relative to the Planned Civic Centre Area Development, by Watts Marketing Research Ltd., Dec. 1961.

REFERENCE ITEM 4 Metropolitan Edmonton Transportation Study Report, Vol.I, June 1963.

REFERENCE ITEM 5 A Coliseum Complex Proposed for Edmonton, Alberta by Stanford Research Institute, May 1963.

REFERENCE ITEM 6 Technical Report of a Pedestrian Study in Downtown Edmonton by Traffic Research Corp. in association with K.C. Stanley and Prof.

J.J. Bakker, May 1963.

REFERENCE ITEM 7 Hearings before the U.S. Senate and House of Representative Committees on the Urban Mass Transportation Act, 1962. (U.S. Gov't Printing Office).

REFERENCE ITEM 8 "Application of Edmonton Modal Split Relationships for Work Trips" -- prepared by Traffic Research Corp. evaluating the effect of recent changes in the Edmonton Transit System April, 1963.

REFERENCE ITEM 9 "A Rapid Transit System for The City of Edmonton" - prepared

by Canadian Bechtel Ltd. (Preliminary report, March 1963)

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