Edmonton (Alta.) - 1987 - Managing urban change in Edmonton (1987-11, Revised)

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Managing Urban Change in Edmonton i

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The City of Edmonton OFPLANNING DE an

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CHANGE URBAN CHANGE MANAGING MANAGING URBAN IN EDMONTON IN EDMONTON

I fan~g and BuiMng Depament

LIBRARY The City of Edmonton

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Prepared by: Long Range Planning Branch Planning and Building Department August, 1987 Revised: November 1987

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TABLE OF CONTENTS

Page List of Figures List of Tables List of Maps Executive Summary 1.0

Introduction

1

2.0

Development Context

2

3.0

Introduction

2

2.1

Capital City and Northern Metropolis 2.1.1 CapitalCity 2.1.2 Northern Metropolis and Service Centre 2.1.3 North Saskatchewan River Valley

2 2 2 3

2.2

Economic Prospects

3

2.2.1 Modest Economic Growth

3

2.2.2 Service Economy Dominance

3

2.3

Demographic Prospects 2.3.1 Modest Population Growth 2.3.2 Aging Population 2.3.3 Low Migration

4 4 4 5

2.4

Need for New Planning Approaches

5

Strategic Land Use Issues

3.1

3.2

7

Introduction

7

Employment 3.1.1 Changing Demand for Industrial and Commercial Land 3.1.2 Slow, Uneven Growth of Suburban Town Centres 3.1.3 Emergence of Major Commercial Corridors

7

10 12

Downtown 3.2.1 Renewal and Revitalization

16 16

7

3.3

Inner City Revitalization 3.3.1 Enhancing Inner City Communities 3.3.2 Special Needs Inner City Neighbourhoods 3.3.3 Infrastructure Improvements

23 23 26 30

3.4 Suburban Growth Management

31

3.5 Transportation

35

3.6 Environment 3.6.1 Agricultural Land Conservation 3.6.2 North Saskatchewan River Valley and Ravine System 3.6.3 Energy Facilities 3.6.4 Environmental Areas 3.6.5 Restricted Development Areas 3.6.6 Historic Preservation 3.6.7 Urban Design

37 37

4.0 Conclusions Sources Appendix A

39 41 43 44 47 48 49

LIST OF FIGURES Opposite Page 1.

Alberta Gross Domestic Product Growth

3

2.

Edmonton Unemployment Rate

3

3.

Edmonton Employment Distribution

4

4.

Edmonton Population Growth

4

5.

Edmonton Population by Age Group

5

6.

Edmonton Population Change by Age Group

5

7.

Edmonton Employment Growth, Industry Division's Share of Increase 1986-1992

8

8.

Edmonton Employment by Traffic District

8

9.

Suburb and Inner City Population

24

10.

1986 Population by Age Group, Suburbs and Inner City

24

11.

Location of Housing Starts

32

12.

Distribution of Housing Starts

32

13.

Additional Tax Levy Requirements to Develop the Enoch ASP

34

Additional Tax Levy Requirements to Develop the Grange ASP

34

14.

LIST OF TABLES 1.

10

Proposed Town Centres

Planning and Building Department

LIBRARY

The City of Edmonton

LIST OF MAPS Opposite Page 1.

Existing and Emerging Megastrips

14

2.

The Downtown (PRIDE Area)

16

3.

Inner City

23

4.

Inner City Areas with Six Indicators Significantly Higher than City Average

28

Areas of Historically High Frequency of Cast Iron Main Breaks

30

6.

Sanitary/Combined Sewer, Combined Drainage Area

31

7.

Agricultural Land Management

37

8.

North Saskatchewan River Valley and Ravine System

39

9.

Restricted Development Areas

44

5.

APPENDICES Al.

Major Industrial Areas

A2.

Traffic Districts

A3.

Inner City Census Tracts with Population Loss Between 1981 and 1986 Greater than 5%

A4.

Inner City Census Tracts with Buildings Requiring Repair Significantly Higher than City Average, 1981

A5.

Inner City Census Tracts with Unemployment Significantly Above City Average, 1986

A6.

Inner City Census Tracts with Percentage of Seniors Significantly Above City Average, 1986

A7.

Inner City Census Tracts with Percentage of Low Income Families Significantly Above City Average, 1981

A8.

Inner City Census Tracts with Percentage of Single Parent Families Significantly Above City Average, 1981

EXECUTIVE SUMMARY Introduction As the background study for the City of Edmonton's new General Municipal Plan (GMP), this paper; "Managing Urban Change in Edmonton": identifies major socio-economic and land use changes expected in Edmonton in the 1987-1992 period; presents and analyzes major land use issues in the context of the expected changes; and proposes, for discussion, policy approaches to be included in the new GMP. A version of this document was circulated to the City of Edmonton departments and selected interestgroups in August 1987. Based on the comments received, the document was revised. The significantrevisions are shown in italictype.

Priority Findings Two major conclusions are evident when all the issues are examined: 1.

The inner city special needs neighbourhoods emerge as the area of priority for City attention.

A series of socio-economic factors have combined to create special needs neighbourhoods in Edmonton's inner city. The inner city special needs neighbourhoods are considered the top priority issue because it affects a significant proportion of the population, has significant financial implications for the City, and existing civic approaches do not address the issue in a comprehensive manner. Because the needs of the inner city are not confined to departmental or jurisdictional limits, a comprehensive corporate effort is required to develop and implement a neighbourhood improvement program.

2.

A new policy approach in the revised GMP is required.

A new land use approach at the city-wide level is needed because the current GMP cannot respond adequately to the emerging issues. As well, changing attitudes towards planning suggest the need to move away from a plan which is focused on land use regulation. Also, for a number of issues discussed in this paper, the current GMP policies fail to recognize and accommodate the changes or provide policies to mitigate adverse effects.

(i)

Development Context Edmonton's role as a capital city and northern metropolis, and its setting along the North Saskatchewan River Valley, provide a variety of opportunities for land use planning, tourism and recreation. The city is an important service centre for agriculture and the oil industry; a transportation hub; and a government and educational centre. Although forecasts for the next five years are for modest economic and population growth, Edmonton, in its role as capital city and northern metropolis, will continue to play an important role in Alberta and western Canada.

Economic and demographic prospects have changed from the boom conditions experienced in the 1970's. Economic performance is expected to remain modest to 1992. Edmonton's population is aging, a trend which has implications for land use, housing and social services.

The shift in emphasis to modest growth provides an opportunity to focus on other land use issues. The future of the City now lies as much in its existing neighbourhoods and infrastructure as in new growth on the suburban periphery. This new emphasis can be observed in the discussion of issues in Section 3.0.

Strategic Issues A strategic land use issue, for this paper, is one of importance at the city-wide

level and meets at least one of the following conditions: it influences the overall spatial pattern of physical development; or it may have limited spatial expression, but has implications for the entire city; or it reflects a continually changing land use problem with long term effects; or it affects the location and size of major activity centres and the flows between them.

The following strategic land use issues are discussed in Section 3.0.

1.

Changing Demand for Industrial and Commercial Land

Continuing employment growth in the service and trade sectors, and the projected concentration of new jobs in the west end and Downtown, have implications for planning in existing and future employment areas.

The new GMP must determine the nature and extent of changes necessary to the industrial policies to meet the growing demand for commercial and service lands in what have been planned as industrial areas.

(ii)

2.

Slow, Uneven Growth of Suburban Town Centres

Suburban town centres, intended as regional activity centres for residents, have only partially been realized in Edmonton. If this key feature of the suburban areas is not developing as anticipated, the suburbs may not function as intended in terms of residential, employment and recreation opportunities.

The GMP must determine the continued appropriateness of the town centre concept, and, if it is still valid, identify policy changes to encourage its development.

3.

The Emergence of Major Commercial Corridors

A series of major retail concentrations, developing generally along a couplet or arterial roadway and having one or more regionally-oriented facilities, are collectively termed a "megastrip". In Edmonton these areas are emerging at the expense of other commercial developments such as the town centres.

Planned transportation improvements will provide the opportunity for further megastrip development.

The GMP must determine directions for action for the infilling and expansion of the megastrips.

4.

Downtown

The Downtown is a major feature of Edmonton and a reflection of economic opportunity within the city. The Downtown provides a feeling of identity for the city and is a major source of taxable assessment. Diversity, intensity and linkage among uses are features needing continued renewal and revitalization to create an attractive and vital Downtown area.

The new GMP must support the ongoing renewal and revitalization of this important area.

5.

Inner City Issues

Inner city socio-economic and land use issues are compounded by physical infrastructure problems: breaks in cast iron water mains, older sewer systems at capacity, and road maintenance requirements. There is a need for extensive repair to these systems, while at the same time, developing areas require the extension of services.

The GMP must identify those areas in the inner city where urban problems/special needs are considered to be the greatest and propose a program for action to address the concerns. There is also a need to protect existing stable and attractive inner city neighbourhoods.

(iii)

6.

Suburban Growth Management

Single family dwellings in suburban areas will likely account for about 95% of the total new housing starts in Edmonton to 1992. Consequently, the mix of suburban dwelling types and densities anticipated by the current GMP will not likely be achieved over the forecast period, with implications for the utilization of existing services and transportation networks and the opportunity to provide a range of housing types.

The new GMP must address the mix of dwelling types in suburban neighbourhoods, the neighbourhood concept and the utilization of existing facilities.

7.

Transportation

The construction of transit and roadway facilities has a significant impact on land use and development within the city.

Because of this inter-relationship, the GMP must ensure continued integration of land use and transportation planning approaches.

8.

Environmental Issues

Environmental issues focus on balancing the wise, safe use of natural resources with competing demands for land use. In this context, agricultural

land management seeks to determine an appropriate designation for the significant amounts of productive agricultural land within City limits.

Energy pipelines and oil and gas facilities must be integrated with other urban land uses. The Restricted Development Areas (RDA's) provide multiple use corridors for pipelines, utility lines and transportation routes. The river valley RDA's serve to recognize and protect environmentally sensitive areas.

Heritage resources are a unique feature also needing special policy approaches. Urban design, with its emphasis on improving the physical environment should be recognized as an important policy feature.

The GMP must recognize existing policies that promote environmental protection and propose new policies where further protection is required.

Future Activities The next step in the GMP planning process will be to have discussions with departmental representatives, special interest groups and with Council to confirm the issues and the proposed planning approaches.

Once a consensus on the issues and planning approaches is reached, the draft GMP policies will be prepared for discussion in the fall of 1987.

(iv)

1.0

INTRODUCTION

This paper is the background study for a new General Municipal Plan (GMP) for the City of Edmonton. The specific Terms of Reference for this project were provided to Executive Committee on April 29, 1987.

The purposes of the paper are to: identify the major socio-economic and land use changes expected in Edmonton from 1987 to 1992; present and analyze major land use issues in the context of the expected changes; and propose, for discussion, policy approaches which should be included in the new GMP. The time period of 1987 to 1992 was selected for the new GMP for two reasons.

First, the five year period corresponds to the major budgetary and forecasting horizon used by the City. Second, five years is the longest period over which it is felt forecasts can be made with confidence because Edmonton's economy is subject to unpredictable world resource markets.

The paper begins in Section 2.0 by discussing the development context for land use planning that can be expected over the next five years in Edmonton.

In Section 3.0, a series of strategic issues and proposed planning approaches are presented. Section 4.0 provides summary and conclusions.

A version of this document was circulatedto the City of Edmonton departments and selected interestgroups in August 1987. Based on the comments received, the document was revised. The significant revisions are shown in italic type.

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2.0

DEVELOPMENT CONTEXT

Introduction A number of features establish the development context for the preparation of the new GMP: Edmonton's status as a capital city and a northern metropolis; the City's economic prospects; the City's demographic prospects; the North Saskatchewan River Valley; and the need for new planning approaches.

Each of these features is discussed below: 2.1

CAPITAL CITY AND NORTHERN METROPOLIS

2.1.1 Capital City Edmonton is Alberta's capital and the Province's largest metropolitan area.

As the Provincial seat of government, Edmonton houses the Alberta Legislature. The government function has resulted in most of the Provincial government's central offices being located here, leading to a relatively stable base of civil service employment. In recent years, the Province has also supported the development of several major research facilities in Edmonton and the surrounding region.

2.1.2 Northern Metropolis and Service Centre Edmonton originated as a fur trading post in 1795. Today, that initial trading function has grown into a dominant role as a service and distribution centre.

As well, Edmonton is often seen as the "Gateway to the North", acting as the key distribution centre for goods and services going to and coming from Canada's north. Edmonton has further recognized its role as a leading northern centre through the establishment of the Winter Cities Corporation and the hosting of the 1988 International Conference on Winter Cities.

Edmonton is well served by higher level educational facilities. Of these, the University of Alberta is the most dominant; with an enrolment of over 28,000, the University is the second largest in Canada.

Edmonton is the provincial centre of a number of manufacturing activities including food and beverage processing, petro-chemicals, and a wide range of products used in the agriculture and oil and gas industries.

Edmonton has a major opportunity to use the capital and northern city features in land use planning, especially for the Downtown, tourism and recreation. These opportunities are elaborated on in Section 3.2.

2

Figure 1I Alberta Gross Domestic Product Growth %

Estimate

5-

Forecast

4 3

-

23 0

I

-I

1

-1 -2 92

91

90

89

88

87

86

Year Source: City Forecast Committee, June 1987

Figure 2 Edmonton Unemployment Rate %

13 -

12

-

Actual

-......

Forecast

.

Oo

1

10 85

86

I

I

87

88

89 Year

Source: City Forecast Committee, June 1987

I

I

I

90

91

92

2.1.3

North Saskatchewan River Valley

In the prairie landscape, the deep and meandering North Saskatchewan River Valley is by far the City's most dramatic physical feature.

For over 75 years, various municipal, regional and provincial authorities have been concerned with protecting the natural environment of the river and ravine system. Moreover, the goal has been not just to protect the river valley, but to have it provide the citizens of Edmonton with a continuous recreation and open space system. The North Saskatchewan River Valley and Ravine System now encompasses over 7,400 hectares, much of it designated for recreational use. This open space/park system is a major focal point and source of pride to Edmontonians.

The North Saskatchewan River Valley and Ravine system will continue to be a dominant feature in the urban setting. The issues and approaches associated with planning for the river valley are discussed in Section 3.6.

2.2

ECONOMIC PROSPECTS

2.2.1 Modest Economic Growth Economic forecasts for the next five years indicate continued modest growth in Edmonton. Improvements in oil prices, industrial and construction activity, and moderate consumer spending will offset the effects of provincial

government cutbacks to provide a modest provincial growth of 1.0% in 1987 (Figure 1). Increased activity from all sectors of the economy is expected in 1988 and beyond as oil prices rise, supporting annual growth rates between 3 and 4%.

The modest economic prospects and continued growth of the labour force affect unemployment rates. High unemployment rates are forecasted to persist in Edmonton over the period 1987 to 1992 (Figure 2), with the unemployment rate staying in the 10.5% to 12% range.

The susceptibility of the Edmonton economy to external forces is significant to the development context for the City over the five-year plan period because it can alter growth prospects quickly and dramatically.

2.2.2 Service Economy Dominance In recent years, Edmonton's employment growth has been concentrat: 7 in the service and trade industries. Over the period 1981 to 1986, the service sector significantly increased its share of total employment while all other major divisions either lost, or only maintained, their proportion of total employment. In 1981, service employment accounted for 31% of the city's total employment, while trade represented almost 19% (Figure 3). At the same time, manufacturing represented 11% of total employment. By 1986, the service sector had increased its share of total employment to over 37%, while trade remained stable and manufacturing employment declined to under 9%.

3

Figure 3 Edmonton Employment Distribution 1981 Actual 1986 Actual

1986 Aca 1992 Forecast

%of Total Employment 40353025 20 15

3 I

10

5 0

Service

Trade

Manufacturing

Industry Division Planning Branch, Planning and Building Range Long 1981; Canada Source: Statistics Department, May 1987

Figure 4 Edmonton Population Growth SActual Actual

1

(000's)

620

~...

620

Forecast

3

600

-

580

560 -

540 -

520 500Soo_ I

t

I

I _

81

82

83

84

_

I

_

85

lI

_

86

_

IlI _

87

_

88

_

_

89

Year Source: 1981-83, 1986-87 Civic Census: City Forecast Committee.June 1987

_

90

_

_

91

92

Although overall economic growth is expected to remain modest, employment growth over 1986 to 1992 is expected to be concentrated in the service and trade industries. The shift to service and trade employment has numerous land use implications, particularly for suburban and Downtown employment growth; these are discussed in Section 3.0.

2.3

DEMOGRAPHIC PROSPECTS

2.3.1 Modest Population Growth The population growth rate for Edmonton from 1987 to 1992 is expected to be substantially lower than in the 1976 to 1986 period. Based upon the forecasts of economic growth to 1992, the City's population is expected to grow by approximately 36,260 persons, raising the populatioii from 576,249 in 1987 to 612,250 persons by 1992. The projected annual rate of increase is 1.3%, well below the 2.6% growth rate over 1976 to 1981 and 1.9% from 1981 to 1986 (Figure 4).

2.3.2 Aging Population From 1987 to 1992, several dramatic shifts in the age composition of Edmonton's population are expected (Figure 5). Generally, Edmonton's population will be aging, with large increases in the mature adult and the seniors groups, accompanied by major losses in the early adult age group: Pre-school (0-4 years): Significant Decline This age group is forecasted to decrease by 1400, from 46,800 to 45,400 persons in 1992. The projected loss is in contrast to the period 1982 to 1987, when this age group increased by 10,800 persons (Figure 6). In short, the 'boom' in this age group is now over.

School Age (5-19 years): Growth in Younger Group The school age group is forecasted to have an absolute increase of approximately 10,700, growing from 112,000 to 122,700 persons in 1992, with all of the growth in the 5 to 14 portion of the group. The projected increase is in contrast to the 1982 to 1987 period when this age group decreased by 1,500 persons.

Early Adult (20-34): Significant Decline The early adult age group is forecasted to have a large decline of 17,200 persons, falling from 193,700 to 176,500 in 1992. This projected loss is greater than the previous five-year period which experienced a loss of 8,400 people.

Mature Adult (35-64): High Growth in 35-44 The forecasted increase in the mature adult group is almost twice as great (30,500) as that of the previous five-year period (17,000).

4

Figure 5 Edmonton Population by Age Group 1987 Actual

(000's)

1992 Forecast

250 -

200 -

150 -

100 -

50 -

0 0-4

5-19

20-34 Age Group

65+

35-64

Source: 1987 Civic Census; City Forecast Committee, June 1987

Figure 6 Edmonton Population Change by Age Group -

(000's)

1982-1987 Actual 1987-1992 Forecast

35 30 25 -

20 15 10

-

5 -

I

0

-5 -10 -15 -20 1

-

0-4

5-19

20-34 Age Group

35-64

65+

Source: 1982, 1987 Civic Census: City Forecast Committee, June 1987

The 35 - 44 age group is forecasted to have a large absolute population increase, 24,900 persons, reaching a total population of 104,700 in 1992.

Seniors (65+): High Growth The seniors age group is also forecasted to have a large absolute increase, 13,700, increasing from 46,900 to approximately 60,600 persons in 1992. This increase is almost twice as great as the increase (7,100) during the 1982 to 1987 period, and reflects Edmonton's aging population.

2.3.3 Low Migration The most important factor influencing Edmonton's slow population growth is the out-migration expected in 1987, followed by low levels of in-migration in the post 1988 period.

The effects of such out-migration are immediate and direct. Between 1983 to 1986, the rental market in Edmonton experienced historically high vacancy rates, explained in part by the out-migration of the young adults most likely to demand this form of accommodation.

The low in-migration will slow Edmonton's population growth rate, and will result in a decline in the young adult population. Services and facilities

targeted at the young adult market will experience soft demand over 1987 to 1992.

2.4

NEED FOR NEW PLANNING APPROACHES

The conditions of growth in Edmonton and public, political and professional attitudes towards land use planning have changed substantially since the preparation of the GMP in 1980. The preparation of local statutory plans for many parts of the city and the proposed hierarchy of District Concept Plans (DCP's) and neighbourhood plans for new developing areas, allow detailed regulatory policies in the GMP to be removed. As the highest level document in the municipal planning hierarchy, the GMP can now concentrate on strategic land use issues at the city-wide level, providing a framework which the more detailed local plans can complete.

The need for a more flexible GMP, responsive to changing conditions, has been expressed by the business community through the Mayor's Business Policy Task Force, for example. Detailed development standards at the GMP level are felt by the business community to be unresponsive to market conditions. The several levels of planning requirements currently in place are felt to lead to excessive negotiation between the Planning and Building Department and development proponents at what should be a general level of planning.

The expectation of modest economic and population growth and the expressed need for more flexibility require a move away from the current GMP strategy of "accommodating whatever growth is attracted to the City" to a more

5

positive stance of encouraging growth. The 1980 GMP is essentially focused on how Edmonton should distribute or allocate the expected high growth.

This approach leads to a regulatory emphasis in the GMP; examples include the density limits and residential staging. This is acceptable when there is no concern with the sources of economic activity or the possibility of discouraging growth. In a more restrained environment, the distributional strategy has little relevance. The strategy in a period of slow growth should be for land use policies that can encourage and actively facilitate economic development, implying the following changes from the current GMP: removal of the detailed regulatory elements; reducing the prescriptive requirements; providing a facilitative approach to development; adopting an emphasis on mitigation rather than the application of prescribed standards.

A revised GMP should set out principles and guidelines from a strategic perspective, providing an overall guide for physical development. Policy and implementation details will be provided in the local area planning documents.

Section 3.0 examines a series of strategic land use issues which should be resolved by the revised GMP, consistent with the emerging development context.

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3.0

STRATEGIC LAND USE ISSUES

Introduction Within the development context in Edmonton to 1992, a series of strategic land use issues can be identified which meet at least one of the following: i) ii) iii) iv)

it influences the overall spatial pattern of physical development in the city; or it may have limited spatial expression, but has implications for the entire city; or it reflects a continually changing land use problem with long term effects; or it affects the location and size of major activity centres and the flows between them.

Four major sources were used in the identification of the issues: i) ii) iii) iv)

published reports and forecasts prepared by civic departments and other agencies; community attitude surveys, working papers and other material from the District Planning Program of the Area Planning Branch of the Planning and Building Department; review of development applications and redistrictings; staff review and discussions.

Other, more local land use issues could be identified. However, the issues are addressed by policies in the various district or neighbourhood plans which are approved, or they will be covered by the plans currently in preparation.

3.1

EMPLOYMENT

3.1.1 Changing Demand for Industrial and Commercial Land Issue Statement From 1987 to 1992, employment growth in Edmonton will be predominantly in the service and trade sectors, with the majority of new jobs concentrated in the west end and Downtown. The existing industrial areas will experience only modest employment growth and, even there, growth will be in services and trade. (See Map Al for boundaries of industrial areas).

These changes are significant for several reasons: the City's current industrial area land use policies favour manufacturing and do not adequately address the land use requirements of trade and service firms; the geographic concentration implies civic infrastructure improvements will have to be concentrated to facilitate employment growth;

7

Figure 7 Edmonton Employment Growth, Industry Division's Share of Increase 1986- 1992 Other 19.8% Manufacturing 3.6%

Service 43.8%

=.-.-

Administration 8.8%

Transportation 10.4% Trade 13.6% Source: City Forecast Committee, June 1987

Figure 8 Edmonton Employment by Traffic District Employment (000's) 801—

v

1986 1992

70 60 50 40 30 20 10 0 Downtown Core

West Jasper Place

Northwest industrial

Mill Woods

Castle Downs

Traffic District Source: Five Year Transportation Program (1988 - 1992), Transportation Department, April 1987.

See Appendix A for a map of Traffic District Boundaries.

there is a vast inventory of vacant serviced industrial land for which there is no apparent current or future demand; there is a need to renew older inner city industrialareas.

The new GMP must determine the nature and extent of change to the industrial area policies necessary to meet the growing demand for commercial and service lands.

Observations/Implications 1.

The present GMP industrial policies favour manufacturing as the preferred land use in industrial areas, with trade and service industries viewed only as ancillary uses. This approach will become a hindrance in the 1987-1992 period since the majority of employment growth will be in the service and trade industries. (The service industries include: education; health and social services; business services; accommodation, food and beverage; and other miscellaneous services.

The trade industries include wholesale and retail trade.)

The emphasis on the industrial uses ignores the likely future concentration of trades and service employment within industrial areas. Approximately 44% of the employment growth over 1986 to 1992 will be in trade and service, with only 4% in manufacturing (Figure 7).

The policy bias in favour of industrial uses means that trade and service activities are secondary in importance to manufacturing. Trade and service activities are residual land uses, without specific policy direction. As well, the emphasis on maintaining an industrial land supply does not consider as an equal priority the maintenance of an adequate supply of trade and service sites within industrial areas.

2.

Employment growth during the 1987 to 1992 period is expected to be primarily in the Downtown, West Jasper Place, and the Northwest Industrial traffic districts (Figure 8). The growth in the Downtown results from its high concentration of trade and service employment, and several new retail projects, while the west end growth is associated with West Edmonton Mall, the development of the Highway 16/170 Street megastrip, and utilization of vacant office space in the Northwest Industrial area. Lesser amounts of employment growth are expected in scattered suburban areas. In Mill Woods, for example, major new development is expected in the town centre while employment growth will also occur along the Calgary Trail corridorand in the Research and Development Park.

One of the effects of the forecasted employment (and residential growth) has been the need to concentrate transportation improvements in the west and southwestern parts of Edmonton. This pattern is expected to continue to 1992.

8

3.

A third feature of industrial land use considerations is the. large inventory of vacant, serviced industrial land, particularly in view of the low past and projected rates of absorption. The inventory issue is important because the current GMP has as an objective, strict control over the development of non-industrial uses in industrial areas to ensure a supply of land for medium and heavy industrial uses. If there is a large available serviced land 'inventory, then the rationale for limiting non-industrial uses in industrial areas is removed.

At the end of 1986, the total amount of fully serviced, vacant industrial land was 950 hectares. Using the industrial absorption rate from the City Forecast Committee of 20 hectares per year, the current inventory would last over 47 years. With an absorption rate of 66 hectares per year (the average annual rate over 1976 to 1986), the serviced industrial land would last over 14 years. When examined by land use district, using the past three years as the measure of absorption to smooth the fluctuations, the inventory shows that both the IM and IB have more than a 20 year inventory, while the inventory figures for IH and AGI categories are beyond 20 years, resulting from the virtual lack of absorption over 1983 to 1986 for these two categories.

The excessive supply of serviced industrial land will encourage land owners to develop their land where there is the greatest market demand. In the future, this demand will not be for "industrial" activities, but rather for more trade and service activities.

4.

There are pockets of older industrialareas within the inner city where land use changes or the intensification of underutilized land or buildings may occur. In some uses, the building or sites are no longer used for industrialactivity. There are also other areaswhere the existing manufacturing activity is expected to continue. The issues associated with the older industrial areas include their impacts on surrounding land uses and the retention of existing employment opportunities or the creationof new opportunitiesthrough the development of new uses.

Planning Approach 1.

The pattern of employment growth is continuing Edmonton's movement towards a "service society". Land use and development policies should facilitate this evolution because these are the sectors where new jobs are being created. Specifically, a more balanced policy approach is needed which recognizes the locational requirements for trade and service uses, especially in "industrial areas". The components of this new approach should include: explicit recognition of the importance of services and trade in "industrial" areas: removal of the present bias protecting industrial land availability, redesignating some industrial lands for other uses: incorporation of policies to ensure adequate supplies of land for service and trade uses;

9

TABLE

1: PROPOSED TOWN CENTRES West Jasper Place (1972)

Kaskitayo (1973) (1973)

Castle Downs (1973) (1973)

Lake District (1979) (1979)

Clareview (1980) (1980)

Mill Woods Town Centre (1984)

Ellerslie (1984) (19)

64.7 ha

27 ha

16 ha

64.7 ha

129 ha

43.8 ha

60 - 70 ha

1. Community

1. Community

1. Community

1. Community

1. Community 2. 36,231 m 2

1. Regional 2. 74,320 m2-

3. 8 ha

3. 4.8 ha

3. 24.2 ha

3. 15.9 ha

3. 24.2 ha

N/A

N/A

N/A

N/A

Area Shopping Centre 1. Role 2. GLA 3. Area Freestanding Commercial Space 1. SQ. M 2. Area Office Space 1 SQ. M. 2. Area

2.4 ha

N/A

92,900 m 2

1. Regional 2. 74,320 m 2

Notes

-asdescribed in each individual area structure

plan

N/A 2. 8.2 ha

N/A

N/A

N/A

N/A

1. 161,497 m2 2. 33.5 ha

Residential 1. Units 2. Area

2. 14.1 ha

2. 28.3 ha

2. 12.9 ha

2. 40.4 ha

1.1,390units 2. 12.5 ha

3. Density

3. 45 ppa

3. 30-45 ppa

3. up to 60 upa

Other Facilities

Clinic Library Fire Station Police Schools adj.

Transit Centre Clinic Library Fire Station Schools

Clinic Library Theatre

Transit Centre Library Fire Station Park

Site Plans

Conceptual

Generalized

Detailed

Conceptual

1. 69.675 m 2

1.12.81 units 2. 2.6ha

N/A

Transit Centre Clinic Arena/Pool Schools Park

Transit Centre Hotel Schools adj.

Hotel Fire Station Park

Detailed

Conceptual

Conceptual

- Conceptual site plans assign uses to general locations only.

- Detailed site

plans show building location and use.

Integration

- Described,

but not detailed

- Described but

not detailed - Residential, schools separate

- Minimal

- Described

- High; all

components

- Commercial/

residential integrated; other components separate

- Minimal

- Integration is

defined as the proportion of Town Centre components located on one site.

SOURCE: Individual Area Structure Plans/Neighbourhood Structure Plans as approved by Council.

MI

l

M

M1m

M

ll

m1MM

locational criteria for service and trade which recognize their demand for sites with high visibility and good vehicle access; new design principles for industrial ASP's to allow the effective accommodation of trade/service uses while ensuring industrial operations are not encumbered; protection of sufficient lands for existing and future industrial operations (manufacturing; transportation; warehouse/storage), concentrating on lands with the following characteristics: (i) proximity to existing industrial operations; (ii) sufficient size to contain potential off-site impacts or allow for appropriate buffering measures; (iii) availability of rail siding access; (iv) adequate road access.

3.1.2 Slow, Uneven Growth of Suburban Town Centres Issue Statement Suburban town centres, which were intended to be regional activity centres for area residents, have only partially been realized in Edmonton. Four of the seven sites proposed have begun to be developed and these have only a very limited mix of uses. The slow, uneven growth of suburban town centres is significant for several reasons: the concept has been a key feature of suburban land planning in

Edmonton; the suburban areas are Edmonton's major residential population growth areas; if town centres are not developing as anticipated, the suburbs may not function in terms of residential, employment and recreation opportunities as intended; appropriate land uses for large vacant sites designated as town centres may remain undefined.

The new GMP must determine the appropriateness of the town centre concept and, if it is still valid, identify possible policy changes to encourage development.

Observations/Implications 1.

The various town centres, as designated in the local plans, were intended to differ significantly in size, role and mix of uses, reflecting the variations in their location and trade area population. (See Table 1). However, the current GMP makes a major differentiation among centres only on the basis of size of the shopping centre component.

2.

The retail component of the town centre (i.e., a regional shopping centre) comprises one of the dominant uses in the town centre concept.

However, as noted in the discussion of megastrips which follows, the development of the highway commercial corridors has slowed the

10

growth of town centres by providing attractive alternative locations for retail and office uses. This situation applies to the Mill Woods Town Centre, the office and retail component for Heritage and offices for West Edmonton Mall. In the case of the Clareview Town Centre, the large expansion of the Londonderry Mall has effectively eliminated the market potential for a regional shopping centre. The result is that the Clareview site will likely have a different range of highway and megastrip commercial uses, but it will not be able to support a regional shopping centre as the heart of an integrated complex.

3.

A number of other uses were identified as necessary components of the town centres including offices, multi-family housing, landscaped outdoor areas and a transit centre.

The office space component of the concept has not developed as foreseen in the current GMP and is the least successful feature of the concept. A study of office space potential completed for the Mill Woods Town Centre project indicates marginal prospects for the office space in 19861996 period. Furthermore, evidence cited in the study indicates that large office buildings do not generally cluster around regional shopping centres.

Medium and higher density residential uses exist in the vicinity of the developed town centres; however, these are not developed to the extent originally proposed and are not well integrated with other town centre

uses. For example, medium density residential uses are adjacent to both Heritage and West Edmonton Malls, yet they are effectively separated by the road network.

Institutional and recreational uses have not developed to the extent anticipated. Slow population growth and lower development densities have led to the deferral of school and recreational facility development, although adjacent lands have been set aside for these purposes, and may still be developed. West Edmonton Mall is unique in that commercial recreational activities are available as a part of the development.

All centres include a transit terminal which would be appropriate when transit service is extended to the area.

Timing is another issue relative to the development of a town centre.

The initial retail component will be viable only after the development of an appropriate trade area (e.g., Mill Woods). The inevitable time lag has been extended by recent slow growth rates.

4.

There are large areas of undeveloped land set aside for future town centre development. Smaller areas adjacent to existing centres intended for multi-family or institutional uses remain vacant. The future of these tracts of land remains uncertain, as the economic prospects indicate little stimulus for major new investment.

11

Planning Approach 1.

In spite of its partial realization, the town centre concept is still appropriate for suburban land use planning in Edmonton for the following reasons: The centres were to be focal points for developing areas; the four existing centres presently serve this role for retail activity; The existing centres represent a substantial commitment by the City and the private sector in terms of statutory plan policy, land allocations and transportation linkages; Town centres are long term developments whose components develop independently in response to separate market conditions. The time elapsed since the concept was adopted is too short to pronounce judgement on its ultimate success or failure; Town centres are presently functioning without all of the anticipated components.

2.

The town centre concept will probably be realized differently for each centre. Variations in size, role and function are readily apparent, both in existing centres and in plans for those centres as yet undeveloped.

The present uniform policy approach of the GMP is inadequate to deal

with the different situations that now exist. Consequently, revised policies in the GMP should recognize the differences (size, role, function, timing) among the town centres.

3.

The development of the town centres has been slowed by the megastrips. The approach should be to encourage more specialized uses to locate in the town centres as a method to speed their development, rather than trying to restrict growth in the megastrips.

3.1.3 Emergence of Major Commercial Corridors Issue Statement A form of large scale, commercial corridor, identified as a megastrip, has emerged in Edmonton. A megastrip is defined as a series of major retail concentrations, with one or more regionally-oriented retail facilities developing generally along a couplet or arterial roadway.

The development of these new megastrips is important for several reasons: the corridors are extensive throughout the city; the development of the megastrips attracted some of the facilities intended for town centres, contributing to their slow, uneven growth: current city policies and development control measures provide no comprehensive reference to megastrip type retail development; the megastrips are the location of significant, planned transportation improvements; and,

12

the megastrips are gateways to Edmonton, providing an important first impression of the city.

The GMP must determine directions for action for the intensification and expansion of the megastrips.

Observations/Implications 1.

The following criteria were used to identify existing and emerging megastrips: Existing Megastrips Mix of Uses The corridor contains a concentration of general and specialized retail uses, services for the travelling public and regionally oriented retail facilities (i.e., mega food stores and community-sized shopping centres). There are also large blocks/amounts of industrial or other developed land suitable for redevelopment to higher value commercial land uses.

Transportation The corridor is served by an arterial couplet system or a divided arterial roadway with minimum traffic volumes in the 25,006 to 30,000 range for average annual weekday traffic counts (1986

levels).

Configuration The corridor contains large blocks of land (greater than 5 ha) which are planned and developed comprehensively with several free standing structures on each block or parcel and an internal circulation system.

Vacant Lands There are large blocks of vacant land available for development with high visibility and good to excellent access to the arterial road network.

Land Use Districts Land uses within the area are generally commercial in nature but may be districted industrial or commercial. New commercial projects are usually developed under a direct control districting rather than general commercial.

Emerging Megastrips Transportation The area could potentially be served by extensions of existing arterial roadways.

Activity Levels

13

Map 1

Existing and Emerging Megastrips (Revised November 1987) .

m Existing Emerging

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Sour:

l

an n i anniiiii

uligD

prm

n

II

Source: Planning and Building Department3

The roadway network, if improved, would attract inter and intra urban traffic from other arterial roadways through increased average speeds or ease of movement. The main purpose of these trips would be commuting or shopping.

Approved Uses The adjacent areas are covered by two or more Area or Neighbourhood Structure Plans which designate future development in commercial, industrial business, service categories or shopping centre and other similar comprehensively planned retail uses.

In Edmonton, six corridors meet these criteria and have developed, or have the potential, to develop as megastrips: (i) (ii) (iii) (iv) (v) (vi)

Calgary Trail between 23 and 82 Avenues; 100 Avenue/Stony Plain Road/170 Street; Argyll Road/50 Street; St. Albert Trail/137 Avenue; Fort Road/50 Street/137 Avenue/118 Avenue; 97 Street between Yellowhead Trail and 137 Avenue.

The corridors are shown in Map 1. These mega corridors eclipse the traditional highway commercial corridor because of the mix of general retail, business offices, and specialized retail facilities (such as the very

large supermarkets) which serve a regional population. As well, the specialized retail outlets function as "anchors" (or major attractions) for customers and other stores. Within these megastrips, the traditional highway commercial uses (service stations, fast food outlets, motels, etc.) are present, but they are no longer the dominant land uses or attractions.

2.

The development of the megastrips has slowed the growth of the town centres by attracting some potential retail and office uses. An analyst who completed a development potential study of the Mill Woods Town Centre observed that the extensive retail projects along Calgary Trail, 34 Avenue and 51 Avenue attracted much of the perimeter commercial and office development that would have otherwise located around the Mill Woods regional shopping centre. Although these comments apply to the Mill Woods Town Centre, similar observations could be made for office and retail for the Heritage centre and offices for West Edmonton.

3.

A land use policy void has emerged for the megastrips. There are no comprehensive development policies which apply to the megastrips: instead, policies are provided in a variety of plans, with no linkage or integration of approach. As an example, policies for the Calgary Trail megastrip are provided in the following: the current GMP covers parts of the megastrip with conventional highway commercial policies; the Calgary Trail Land Use Study provides policies for a larger area;

14

the North Duggan plan applies to a specific commercial projectthe South and Southeast industrial outline plans apply to areas bordering the megastrip, but not the megastrip itself; the Old Strathcona Area Redevelopment Plan applies to the Whyte Avenue area.

The important feature of these plans is that they all provide policies for portions of the megastrip; yet there is no recognition of the linkages among the areas and that the integrated nature of the corridor will influence development activity within the plans' boundaries. Similar observations could be made for the other megastrips.

In effect, the policy approach to date has not recognized the physical extent and integrated nature of the corridors. The results are policy plans which are piecemeal in approach and incomplete in their treatment of the corridors.

4.

Since 1985, City Transportation plans have shown an increased emphasis on a series of major road improvements in megastrip corridors. The improvements have increased the attractiveness of the corridors for commercial development. The Transportation Department's 1987-1992 five year plan identifies the extent of the projects, but perhaps the most illustrative of the improvements in the megastrips is the Highway 16/170 Street intersection. An overpass was removed and a couplet system constructed because the previous road pattern could not accommodate traffic flows through the corridor and to West Edmonton Mall. In effect, the overpass was an obstacle to the proper, integrated functioning of the megastrip corridor and had to be replaced with an at-grade intersection and couplet.

Another example is the proposal to construct the first portion of the Outer Ring Road from Highway 16 to the Whitemud Freeway, removing some through traffic from part of the West Edmonton megastrip corridor. The intensity of activity in the corridor has reached a point where a bypass becomes justified so that the corridor can continue to function effectively.

5.

The megastrips are important gateways to Edmonton, helping to establish an initial image of the city to visitors. The development of the tourist information centre at Gateway Park on the Calgary Trail recognizes the significance of the routes for tourists and visitors. As well, special landscaping adjacent to a new railway facility along the Calgary Trail was provided. Further efforts at highway beautification and maintaining high development standards could help to create a more favourable impression of Edmonton. Also, the tourist information potential of the other megastrips could be exploited.

15

Map 2

The Downtown (PRIDE AREA)

A.A

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1020

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0

AVED

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11 AVE AVI LEGEND

Are.

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91E5 A EFI NVI LEGEND PRIE Aea ounar

Planning Approach 1.

The megastrip corridors should be recognized as major features of land use policy planning at the city-wide level by being designated as a separate land use. The corridors are not merely large highway commercial strips, but new land use forms requiring specific land use objectives, policies and development standards.

2.

The time involved to reach a built-out state along the megastrips will extend over many years, possibly creating areas of incompatible land uses in the interim period. Consequently, land use district provisions and development agreements should maintain as high a development standard as possible to encourage orderly land use changes.

3.

As a result of the ongoing growth of the megastrips, the draining away of uses from the town centres will continue, contributing to their slow growth. Restricting the growth of the megastrips is not likely to be successful given their significant locational advantages, so the policy approach for the town centres should be to attract specialized uses.

4.

The megastrips are influenced by the arterial roadway system.

Improvements to the arterials will intensify the megastrips, while intensification of the megastrips may require roadway improvements.

The policy approach to the megastrips must recognize this dynamic interaction.

5.

The policy approach for the megastrips must ensure that the gateway function is enhanced. Highway beautification, development standards and provision of attractive tourist information facilities could be components of the megastrips.

3.2

DOWNTOWN

3.2.1 Renewal and Revitalization Issue Statement The central features of a strong downtown are diversity, intensity and linkage among uses, with these features needing continual revitalization and renewal to create an attractive and vital downtown area. A balance of all three features is essential to Edmonton's Downtown, which is defined by the area shown on Map 2. PRIDE (Program to Improve Downtown Edmonton) boundaries are used, as they include more area than covered by the Downtown Area Redevelopment Plan.

Diversity is concerned with the mix and range of uses and experiences: retail; service; office; entertainment: cultural; educational; government and housing.

Intensity involves the number and size of facilities, and their concentration in terms of spatial location. Linkage refers to the physical spaces between uses, and the environment created in these public and private spaces.

16

The economic expansion of the 1970's had major impacts on the Downtown. A number of large office buildings were built, concentrating on the government area, Jasper Avenue and along 101 Street. Retailing expanded with the construction of a major complex linked by pedways to other retail and office complexes. However, strong suburban growth, especially of large regional shopping centres, meant Downtown was no longer the centre of retail activity in Edmonton. The opening of Phase II of West Edmonton Mall in 1983, and the announcement of plans for a massive Phase III expansion led to concerns for the adverse impacts on Downtown. This development forced the City and Downtown business to take a close look at the health of its Downtown, and led in turn to the preparation of a number of revitalization strategies. PRIDE (Program to Improve Downtown Edmonton), a public/private partnership, was formed in 1983 to start downtown revitalization and strengthen the image of Downtown. Since that time, PRIDE has been responsible for physical improvements to Jasper Avenue, Rice Howard Way, Centennial Plaza, the Heritage Trail, and others. In addition, a successful parking management program, "Park in the Heart" was developed in conjunction with the Downtown Business Association (D.B.A.) Continued renewal and revitalization of Downtown is significant for the following reasons: The Downtown is a major feature of Edmonton and it is important that the City maintain its strategy of fostering it as the major business, financial, government, cultural, entertainment and tourist area of the

City and the surrounding region.

The downtown area of a city is also a reflection of the economic opportunity of an area; it is an important feature for marketing a city as it is often the first area investors and visitors experience in the community.

There is a need to provide all Albertans with a flourishing Downtown in the provincial capital. The Downtown helps to establish the city's identity for both the residents and visitors. Rejuvenation of this area will help maintain a positive image of the "Capital City".

There is a need to protect the major taxable assessment found in the Downtown area. The City cannot afford the erosion of the investment and revenue represented by this area and only consistent effort at revitalization and improvement will protect the investment.

There are a number of other issues within the Downtown, ranging from office vacancy rates, the development of pedestrian circulation systems to the enhancement of special character areas. These are more appropriately addressed through the Downtown Area Redevelopment Plan and other programs such as PRIDE. At the level of the GMP there must be acknowledgment and support for the ongoing programs of renewal and revitalization.

17

Observations/Implications 1.

A major effort to strengthen the Downtown has civic and private commitment and is underway in the form of PRIDE (a Program to Improve Downtown Edmonton). The goal of PRIDE is to reaffirm the Downtown as the social, cultural, and economic heart of the city. The Edmonton Downtown Development Corporation (DDC), the Downtown Business Association of Edmonton (DBA) and the City are major PRIDE partners with the aim of maximizing public and private resources for downtown revitalization through careful planning and coordination of activities, programs and facilities.

In February 1986, Council approved a long term strategy for the program "Partners in PRIDE". Various, ongoing program components have been developed to enhance diversity, intensity and linkages through physical and parking improvements, increased housing, promotions and special events, streamlined civic procedures, increased retail activity, public communications, and enhancing the social and cultural environments. However, to date PRIDE has had limited success in attracting federal/provincial participation.

2.

The Downtown provides a wide range of activities and functions including retailing, service, office, government, housing, entertainment, educational, social and cultural uses. Development since 1982 has varied among activities; but overall, the Downtown has

shown considerable vitality in a difficult economic environment.

Retail A major retail revitalization in the Downtown is creating strength in the retail area focused on Edmonton Centre, Eaton Centre, Manulife and The Bay. This retail revitalization is adding both diversity and intensity as significant amounts of new retail space are being added to this core area by the Eaton's Centre project in 1987 and the Manulife Phase II project in 1988. Other retail projects in the planning stages include a fourth floor to Edmonton Centre, large scale renovation to The Bay complex on Jasper Avenue, and the Olympia and York office/retail development. The Planning and Building Department's retail impact model indicates that the Downtown is the second largest retail complex in the City; in terms of performance, measured in sales per square foot, the Downtown is significantly above the average for all centres. This strong retail performance in the Downtown helps to explain the current expansions of retail space Downtown and points to the possibility of further expansion in future years.

18

Office Office development is important to a strong Downtown because office workers provide a significant market to the retail and service uses provided in this area. However, in recent years, the development of new office space throughout Edmonton has been weak, and Downtown and suburban office space vacancy rates have remained high. If the City is to maintain a strong Downtown, especially within the context of modest economic growth, then the present strategy in the GMP of encouraging office decentralization away from the Downtown is inappropriate.

Residential The Downtown is not fulfilling a significant residential function, although some 4,400 housing units exist at present. Since 1983 new housing development in the Downtown has been almost non existent.

This form of redevelopment is not occurring due to a number of factors, including the economic downturn, the high costs of redevelopment compared to the suburban areas and the removal of federal and provincial incentive programs for multiple family housing construction.

The inability to attract substantial housing development to the Downtown diminishes the potential for revitalization of the Downtown.

A stronger residential component in this area is necessary to encourage expanded use of the Downtown, particularly after working hours.

Areas adjacent to the Downtown have increased in population over the past five years and have the potential for further residential growth.

The quality of pedestrian and vehicular linkages between the Downtown and its fringe areas will likely influence the extent to which the population in these areas will use Downtown services and facilities.

Other Uses In the last several years, revitalization of several other features of the Downtown has occurred, with several of the projects located in the eastern portion of the Downtown, including a major federal government presence (Canada Place). The Citadel Theatre completed a major expansion with the addition of a new theatre and other facilities. As well, one hotel underwent a major expansion, another was renovated and there are also plans to renovate a third hotel. Grant MacEwan Community College has leased office space and now has a significant Downtown presence. All of these uses contribute to diversity in the Downtown.

3.

As an incentive within the Downtown Area Redevelopment Plan Area, the City has adopted a policy (C413) of granting development concessions (which have identifiable financial costs to the City) based on a project's individual merits. The policy sets out guidelines for the evaluation and consideration of a project, and is limited to a five year

19

maximum commitment by the City. The policy will apply to proposals received to the end of 1987. This type of incentive illustrates the City's commitment to the revitalization of the Downtown.

4.

The Downtown is the central focus of the City's transportation system; however, access to the Downtown is a limiting factor to its employment growth unless further LRT is provided. The 1986 Central Business District (CBD) Transportation Study indicated that a 50% growth in CBD employment (30,000 additional jobs) would lead to a 10% increase in morning peak hour auto trips crossing the CBD cordon (2,000 trips), provided there is a peak hour shift to transit and the diversion of through trips to other routes that currently use the Downtown network.

The development of the south leg of the LRT and the expansion of transit service into the CBD is necessary to significantly improve the transit accessibility to the Downtown and facilitate the continued development of the Downtown for retail and office facilities.

5.

The Downtown represents a major taxable assessment area of the city.

In 1986, the total municipal tax levy for the City was $189.4 million, of which the Downtown comprised $28.9 million, or 15.3% of the city's total tax levy. The importance may be greater if business taxes are included. The City cannot afford an erosion of this significant investment and source of revenue represented by this area.

6.

Because Edmonton is the capital city of Alberta, there is both a

responsibility and an opportunity. As the Provincial Capital, the City, especially the Downtown area, is always on display to visitors. The Legislature Grounds are a major focal point in the Downtown, contributing to a strong visual image in the minds of residents and visitors alike.

7.

Urban design considerations play a major role in the image and perception of the Downtown. This issue is being currently addressed by the production and implementation of the Edmonton Downtown Design Improvement Manual, a series of guidelines intended to enhance the appearance and function of the Downtown environment. A design panel reviews all major development proposals within the Downtown.

One significant feature of the Downtown is its proximity to the River Valley. Visual and physical access could be improved significantly through facility improvements and site planning considerations for new projects. A second feature is the need to address the "winter city" nature of Edmonton. Pedways, building design, and outdoor spaces are all features that can influence the Downtown's successful functioning during the winter.

8.

An important component of PRIDE is the enhancement of the Downtown's social environment. There are a number of aspects related to this issue. One is that a significant part of the Downtown area is an established residential area with a strong sense of community, whose values and needs differ from the other users in the Downtown. Other

20

social issues include the development of housing to meet a wide range of needs and the perception of safety and security concerns.

The Social Services Department is proposing to prepare a -Social Plan" for the PRIDE area which would complement the social aspects of Downtown physical planning.

9.

Tourism represents an opportunity for the Downtown; however, to take advantage of this opportunity, there must be the facilities and events that will attract visitors. Once Downtown, the visitors' needs for information (maps, routes, signs, etc.) have to be met.

Planning Approach 1.

The ongoing PRIDE program and its important principles of cooperation and communication between partners should be supported in the new GMP. Efforts should be made to encourage more federal/provincial participation to broaden PRIDE.

2.

The Downtown should receive priority in the development of major commercial, office buildings, administrative quarters, large hotels, major cultural and educational facilities. These activities will add to the diversity and intensity of Downtown. This is consistent with the Downtown Area Redevelopment Plan, which seeks to maintain Downtown as the focus of the City and the Region, and as a major area for high density land use concentration. Where a proposal for one of these facilities is being considered by the City, every effort should be made to induce its location to a Downtown site. The Civic Square Concept could be an important component to Downtown revitalization.

The City should also continue to support the retention of major government office facilities in the Downtown. Office space decentralization away from the Downtown is no longer an appropriate approach, given the modest economic growth projections for the City.

Office space leasing can be utilized by the City as one means to encourage redevelopment/revitalization of office space in the Downtown similar to the approach taken for the Boardwalk/Revillon complex.

The development of substantial quantities of market and social housing in and around the Downtown area and the maintenance of existing housing areas should be promoted. To carry through with this strategy, the City should promote the Downtown and its residential areas as a desirable community, designate specific areas for residential development, ensure land is available in these areas to accommodate new housing and provide municipal incentives to encourage new residential development through zoning and the leasing of City owned land.

3.

The current civic policy of granting development concessions as an incentive within the Downtown area should be reviewed, as should the maximum five year duration of such incentives. Consideration should

be given to extending the applicable boundaries to encompass those defined by the PRIDE area.

4.

The objectives for transportation service in the current GMP should be retained in the revised GMP. The construction of the LRT to the University and its further extension to Southgate should continue to receive priority, and ongoing programs to resolve existing capacity problems should be supported.

5.

A consistent effort of revitalization and continual improvement is required to ensure that the Downtown remains a strong component of the City's tax base. The granting of the time-limited development concessions as an incentive indicates the City's long term commitment to improving the Downtown, within the context of fiscal responsibility.

6.

Discussions should be initiated with the Province to establish a Capital City program. Such a program would serve to emphasize Edmonton's significant role as the Capital City in Alberta.

7.

In concert with the business community and other levels of government, a program of civic beautification for key areas of the Downtown should be continued, focusing on areas where public or private redevelopment activity is scheduled. Implementation of the Downtown Design Improvement Manual as a cooperative activity with the development industry, should be an important civic priority.

8.

Enhancement of the social well-being of the Downtown must be an integral part of revitalization. Among the elements of the approach should be Downtown housing for a variety of social needs, enhancement of safety and security and the preparationof a 'social plan" which can ensure integration of improvements to both the physical and social environments.

9.

Special events, sales promotions, parking improyements and beautification, capital improvement projects and additional cultural facilities projects continue to be areas of concentration for the partners in PRIDE. Efforts by PRIDE and other programs to provide facilities and events that will attract both visitors and residents downtown should be continued.

A "tourist friendly" program for Downtown Edmonton should be prepared that will encourage better use of Downtown facilities by visitors to Edmonton. This program would encourage better utilization of services/facilities in the Downtown, particularly for visitors, by providing better signage, mapping, information centres and kiosks.

22

Map 3

Inner City

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Source: Area Planning Branch Planning and Building Department

3.3

INNER CITY REVITALIZATION

3.3.1 Enhancing Inner City Communities Issue Statement Inner City areas (Map 3) present significant contrasts which require a variety of approaches to achieve community enhancement. In some neighbourhoods there may be combinations of population loss, and underutilized or incompatible land uses. In other areas, where communities are presently stable and attractive, preservation of these characteristics is essential. The contrast between areas of decline needing change to achieve vitality, and preserving the stability and attractiveness of other areas, provide the twin features of the GMP planning approach for the inner city.

Observations/Implications 1.

The inner city areas have continued to lose population from 1983 to 1986 and this trend is expected to continue to 1992 (Figure 9). While the city experienced an overall population increase of 11,400 (+2.0%) between 1983 and 1986, the inner city declined by 10,400 (-2.9%) and suburban areas grew by 21,800 persons (+ 10.7%). Within the inner city only the Downtown, the Downtown fringe and the University districts did not follow the trend of population decline. Population growth in these three areas resulted from the occupying of a large

number of vacant rental units from 1983 to 1986. The vacancy rates in these three areas are now lower and no significant new multiple family construction is expected to 1992. Over 1987 to 1992, the inner city is expected to lose another 13,000 persons (-3.8%) while the suburban areas could grow by about 49,400 persons (+ 21.3%).

Inner city population decline is significant for these reasons and because: the emerging age structure in the inner city is increasinglyfocused on the younger and older age groups, creating concentrated demands for certain municipalservices; the market for inner city commercial outlets is reduced at a time when slow economic growth makes competition among facilities even more severe; and there are strong local desires in some neighbourhoodsto limit new multiple family dwellings; the result will be lower housing and population densities.

Each of these features are discussed below.

23

Figure 9 Suburb and Inner City Population (000's) 400

-

Suburbs Actual

- ..-

Suburbs Forecast

.......

Inner City Actual

- - - - Inner City Forecast 350.....

..................

.

-

-

300 -

..

250 -

-

-"

200

II

150

83

84

85

86

87

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88

89

90

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Year Source: Long Range Planning Branch, Planning and Building Department, June 1987

Figure 10

1986 Population by Age Group, Suburbs and Inner City Suburbs

(000's) 120 -

Inner City

100 -

80 -

60 -

40

20 -

0

65 + 35-64 20-34 Age Group Source: Long Range Planning Branch, Planning and Building Department, June 1987 0.4

5-19

2.

Several age structure differences between the inner city and suburban areas are increasingly emerging (Figure 10). The 1986 population in the inner city shows a high concentration (34.3%) in the 20-34 age group. The central core areas of the city (Downtown, the Downtown fringe and, more especially, the University) have the highest proportion of these ages in their population. This reflects the desire by young, single people for living close to central facilities and shows the effect of the University in attracting young residents to its vicinity.

There is a marked spatial concentration for the 25-29 age group in this area. The central areas also have a high proportion of their population in this age group, but so do the newest suburban subdivisions, such as West Jasper Place, Clareview and Lake District. This pattern is a result of the tendency for young families to purchase homes in new growth areas.

The older inner city neighbourhoods in areas such as Jasper Place, Calder, Capilano and Bonnie Doon clearly have a higher percentage of their population in the older age groups (+55) than do the new suburban areas. For example, 16% of Bonnie Doon's population is aged + 65, compared with 1% for Clareview.

The growing suburban areas have an age structure which is more likely to lead to continued strong population growth. The inner city accommodates larger concentrations of the young mobile population, seniors, and mature families for whom household size may be

decreasing. Municipal service demands, particularly for services to seniors, will be influenced by the concentration of age groups in the inner city.

3.

The decline in the inner city populations, coupled with below city average household incomes for these residents, is expected to create generally difficult market conditions for inner city regional shopping centres; these centres are expected to have sales performances approximately 15% below the suburban centres from 1987 to 1992 based on the City's retail impact model. Although lower sales performance does not mean the centres are unprofitable or that expansion will not occur, it implies that the range of shops and services will be more limited and that expansion potential of most inner city shopping centres is less than suburban centres.

Similar conclusions apply for the inner city retail strips.

Unfortunately, the Retail Impact Model does not include the inner city shopping strips so a detailed simulation of sales performance is unavailable. However, the strips are likely affected by the same forces as the inner city shopping centres, with the added issues of parking, traffic congestion and the image and mix of stores. The issue of parking and the older commercial strips highlights a dilemma in the inner city.

An element in preserving the integrity of residentialareas is the use of parking management schemes for the older retail strips. At the same time, the viability of the strips requires on-street parking which spills into residentialareas.

24

4.

If the population continues to decline in the inner city, the contrast between the old and new neighbourhoods in housing, environment, access to services and facilities will become stronger.

With Edmonton's population growth occurring in the suburbs, the suburbs will become the preferred market location for many new facilities resulting in a growing disparity between suburban and inner city growth. The most dramatic example is food shopping. The construction of six new mega-supermarkets in the suburban highway corridors has resulted in the closure of numerous older and smaller inner city supermarkets. Food shopping, which once was a convenience activity, is increasingly becoming regional, with the megastrips as the preferred location for such regional-oriented retailing. Inner city residents have seen their local access and range of food shopping opportunities lessened.

5.

In contrast to the neighbourhoods with population losses and land use incompatibilities,there are other neighbourhoodsin the inner city which have a relatively stable population and where the quality of the physical environment is high. Any new development would have to be compatible with the existing development; for these areas, the preservationof their attractivefeatures, including the currentland uses, is desired.

Planning Approach

1.

Efforts should be directed at making the inner city an attractive place to live and invest, rather than attempting to limit or redirect growth in the suburban areas. This approach avoids placing restrictions on suburban growth anticipating that the growth will turn back to the inner city. The strong demographic and market forces shaping suburbanization make such a reversal unrealistic.

Among the active and positive approaches which will initially at least stabilize the inner city and lay the foundation for renewal are programs such as the following: the current infrastructure upgrading (based on the principle that all residents pay, not just those in the inner city); the Alberta Municipal Partnership in Local Employment program (AMPLE) currently underway in these neighbourhoods: and the Residential Rehabilitation Assistance Program (RRAP); and Business Revitalization Zones for older strip shopping areas.

2.

Following upon the need to make the inner city attractive, the following features should be part of the planningapproach: ensure the compatibility of new development with existing, while encouragingvariety in the types and densities of land uses: maintain stable and attractive neighbourhoods which recognize the local residents' desires;

25

improve the living environment through housing stock rehabilitation; encourage the constructionof new family type housing to try and mitigate population losses; provide high density activities at sites with appropriatelocational criteria,includingcompatibility with adjacent uses.

3.

The downzoning trend for inner city area redevelopment plans suggests that any new development will probably not be sufficient to reverse the ongoing population decline. Also, the downzoning is in accordance with community wishes and should be acknowledged and accommodated by the new GMP.

4.

A form of local neighbourhood improvement program would also appear to be an important coordinating mechanism for the various city activities. Further details for the components of the program are identified below after the special inner city neighbourhoods are discussed in Section 3.3.2.

3.3.2 Special Needs Inner City Neighbourhoods Issue Statement In addition to population decline, the inner city has higher levels of unemployment, dwellings requiring repair, seniors, low income and single parent families than the city average. An examination of 83 inner city census tracts shows that the high levels for these indicators are not spread evenly across the inner city but are concentrated in a number of neighbourhoods.

Several methods are used to identify special needs inner city neighbourhoods.

The first is to determine whether any one of the indicators examined is significantly above the city average. An indicator is considered to be significantly above the city average if it exceeds it by 25%; for example, a neighbourhood with more than a 13.75% unemployment rate in 1986 would be significantly above the city average of 11% (because 13.75% is 25% above 11%). The 25% cutoff is an arbitrary figure, but it is considered to represent a situation in which the conditions in the neighbourhood are significantly different than the rest of the city.

The second step in identifying special needs neighbourhoods is to determine which areas have multiple indicators that are significantly above the city average. Other things being equal, a neighbourhood which has population decline, unemployment and a higher percentage of lower income families is considered to be more of a special needs neighbourhood than one in which only population decline exceeds the city average.

A qualitative analysis has also been undertaken by the Area Planning Branch based on their collective knowledge of city neighbourhoods. Selected criteria for evaluating areas include: housing condition; the age and condition

26

of city infrastructure; neighbourhood appearance; amenities; crime statistics and evidence of vandalism; transportation impacts; noise and general quality of life within the area.

The use of both quantitative and qualitative methods together contributes to a more comprehensive analysis of the city. Where data collected by census tract may lack specificity, the qualitative analysis is able to highlight areas of anomaly within tracts that may be showing signs of improvement or decline.

Census tract data is further enhanced by the appreciation of neighbourhood dynamics gained by the qualitative approach.

In addition to the qualitative neighbourhood analysis, a study of capital expenditure trends by all city departments for all neighbourhoods is also underway by the Area Planning Branch of the Planning and Building Department. This information will provide insights into departmental/city priorities and may highlight areas where a coordinated approach would be most valuable.

Observations/Implications 1.

Over the period 1981 to 1986, the population of the 83 inner city census tracts declined by 6.2% from 369,875 to 349,295. Of all the inner city census tracts examined, 75 tracts experienced some decline in population, while 57 tracts experienced a decline of greater than 5%, making them significantly above the city average.

2.

In 1981, 26.3% of the buildings in the inner city were in need of major or minor repair compared to 20.7% for the Edmonton average. Of the 83 inner city tracts, 44 tracts are considered to be significantly above the average for Edmonton.

3.

The average unemployment rate in the inner city was 12.5% compared to 11% for the city of Edmonton in 1986. Unemployment rates were significantly greater than the city average for 30 inner city census tracts.

4.

In 1986, 7.9% of the population in the inner city was composed of people 65 years of age and older compared to 5.4% for the city as a whole. The percentage of senior citizens was significantly above the city average in 50 inner city tracts.

5.

In 1981, 12.3% of inner city families were considered to be low income families compared to 10.7% for the entire city. The percentage of low income families was significantly above the city average in 32 inner city census tracts.

6.

In 1981, 13.7% of all families in the inner city were single parent families compared with 11.7% for the city. The percentage of single parent families was significantly above the city average in 24 inner city census tracts, which are considered to be special need areas.

27

Map 4

Inner City Areas with Six Indicators Significantly Higher than City Average NOTE:

"

These areas are illustrative of selected criteria; exact areas should be determined as part of the inner city program.

II Park

SElmwood

Eastwood Parkdale' Alberta Avenue .Downtown west Jasper Place

I

I \\

Boyle Street Riverdale

Glenwood ossdale

G Sherwood Jasper Park-

INDICATORS Population Loss .Buildings Needing Repair --

-

. High Unemployment Many Senior Citizens

Low Income Families . Single Parent Families

Source: 1986 Civic Census; Statistics Canada, 1981

--

7.

The urban problems and special needs reflected in the six indicators examined are interrelated and often coexist in the same area. Of the 83 inner city census tracts examined, 75% have two or more indicators and 55% have three or more indicators significantly above the city average.

The spatial distribution of these six indicators are shown in Maps A3 to A8, Appendix A.

8.

The results of the census data analysis closely match the more qualitative information. The areas in which all six of the census tract indicators are significantly higher than the city average, and which also exhibit signs of "trouble" are shown on Map 4.

The use of different criteria, or the selective weighting of criteria, might result in the identification of areas other than those shown on Map 4.

Consequently, the most important conclusion is that there are parts of the inner city where there are significant socio-economic and land use issues to resolve rather than the confirmation of the precise areas on Map 4.

The chosen areas should reflect the criteria, funding availability, community participation and other factors.

9.

Because the urban problems and special needs of these areas are highly inter-related, coordinated intervention at the social and economic as well as the physical level is required if their problems and needs are to be dealt with effectively. In the special needs neighbourhoods, physical improvements are needed; however, they will not be as effective if

changes are not made to affect the social and economic factors behind the decline.

10.

Area Redevelopment Plans exist for six areas identified as having the greatest urban problems and special needs: Plan

Date Council Approved

Alberta Avenue/Eastwood Boyle Street/McCauley Downtown Parkdale Riverdale Rossdale

1979 1981 1985 1983 1977 1986

Although all of these Area Redevelopment Plans provide objectives and proposals regarding the physical configuration of the neighbourhoods concerned, only the Boyle Street/McCauley and the Alberta Avenue/Eastwood Redevelopment Plans set out the need for specific social objectives and development proposals. Beyond general statements about commercial revitalization, none of the Area Redevelopment Plans refer to specific objectives regarding the socio-economic characteristics of the neighbourhoods.

Planning Approach 1.

There are a number of areas in the inner city which have significantly higher levels of urban problems and special needs requiring greater civic attention and resources. Because the City does not have unlimited resources, it should assign a high priority in the provision and planning of its services to the special need inner city neighbourhoods which are experiencing high levels of urban problems. This general approach should be recognized in the new GMP. The features outlined in the next points should be considered as examples, but they would not necessarily be included in the new GMP.

2.

Because the problems of the special need inner city neighbourhoods are highly interrelated, they will require coordinated intervention at the social, economic and physical levels. Since the City of Edmonton has only a limited mandate and limited resources to intervene at the social and economic levels, other organizations, agencies and levels of government would have to become involved. A form of local neighbourhood improvement is necessary with the following types of component strategies: housing quality improvements; innovative infill housing and non family oriented alternatives; greater emphasis on local traffic management; social housing initiatives; community physical improvements; community organization and development; and employment and job training needs.

3.

The economic, social and physical problems of the special need neighbourhoods are extensive and long term, requiring a strong commitment on the part of the City, other organizations and the residents of these neighbourhoods if their situation is to improve. This commitment needs to be more than financial. Those involved in the effort must feel this commitment personally. In the planning process, innovative avenues should be explored for encouraging a strong commitment to improving the conditions of the neighbourhood.

4.

This commitment can be promoted by involving the residents of the neighbourhoods and relevant service agencies in setting realistic and quantifiable goals regarding the social, economic and physical characteristics of the neighbourhoods when undertaking detailed planning at the small area level. Examples of such goals might be to increase the number of residents in the neighbourhood who are employed or to reduce the number of dwellings in need of repair over a given period of time. If the commitment to these goals is to be maintained, it is important that progress be monitored and those involved be kept informed.

29

Map 5

Areas of Historically High Frequency of Cast Iron Main Breaks High Frequency Area -- Cast Iron Area Boundary

XI .................

II

......... .......

... Y..e.........

.........

: :.:.:.:.:,:.:.:

1107iSniain

Source:~~~. e t.18 .

.

.

.

..............

.............. .

. .............

................

Wate Netork nginerin

Suc:Water &NtoEngineet.i198

I

3.3.3 Infrastructure Improvements Issue Statement The City of Edmonton is experiencing a number of infrastructure problems, particularly in older neighbourhoods. This situation is significant because of: the geographical extent across the inner city; the major financial implications; and the problems must be resolved to help encourage inner city revitalization.

Observations/Implications 1.

The most significant infrastructure problem involves the replacement of the cast iron water mains. Over 1,100 kilometres of the total 2,600 kilometres of water mains in the city are cast iron. The combination of the inferior metals used prior to 1965 and the complex action of underground forces is leading to severe problems with water main breakages in cast iron pipes. The number of breaks has drastically increased over the years, from 52 in 1951, 708 in 1974, and over 1,600 in 1985. Cast iron pipes represent 90% of these breaks (Map 5). As of January 1986 the City had embarked on a large scale program to replace the cast iron mains; the program will take 55 years and an estimated $412.5 million to complete.

2.

A second infrastructure problem is that many rigid road bases, especially in residential areas, need resurfacing. The City also has an inventory of 11 cross-river bridges and 81 overpasses and underpasses to maintain. The City has scheduled 35 kilometres per year of arterial and collector resurfacing, giving a 17.5-year replacement cycle based on an inventory of 610 kilometres; the goal of the Transportation Department would be 61 kilometres a year and a 10-year cycle, if more funds were available. The major shortfall is with regards to residential roadway resurfacing since provincial funds are not available. At present, only 19.3 kilometres per year are being resurfaced, resulting in a 93-year cycle on the 1,797 kilometres of residential streets. If funding were available, it would be desirable to increase this to 90 kilometres per year.

3.

The capacity in the combined sewer system, which serves the older part of the city (Map 6), is no longer adequate to handle the load, with back-ups becoming a major problem. In 1985 Council approved a 15-year sewer upgrading program which will cost $67 million.

4.

The Provincial Government has initiated a new program called the Alberta Municipal Partnership in Local Employment Program (AMPLE). The funds will be used to renew infrastructure (underground utilities and roads) and provide surface improvements and amenities within public rights-of-way (sidewalks, curbs, gutters, benches, signs, trees) of some older neighbourhoods. Over 10 years, the amount designated for the City of Edmonton is $125 million.

30

Map 6

Sanitary/Combined Sewer,

Combined Drainage Area

I

--

I

I

SANITARY / COMBINED SEWER COMBINED DRAINAGE AREA ST. ALBERT AGOONS

II

jREMNER

I

~~010

IS3 AviL

V

.....

- ____'- .....

--/__ ...,. ~oo

_

TREATMENT

",h

(PRE-1982)

LI

I L

Source: Water & Sanitation Dept. 1986

Drainage Engineering

0CLOVER

AR

A.O0.

BA

Io.nAv.

OLD CITY

0

-',LAGOON I"I,

r

wASrTwaTER

PLANT

5.

The Area Planning Branch of the Planning and Building Department is presently preparing a Neighbourhood Program Report at the request of Council. This report is investigating how responsive the City has been to community needs, in particular, a case study is being done to correlate 1986 capital costs of various departments (e.g., Transportation, Parks and Recreation, Water and Sanitation, Edmonton Power and 'edmonton telephones') with identified community needs. This study, although dealing at the City-wide level, will provide useful information on the infrastructure needs and services being applied to the older neighbourhoods.

Planning Approach 1.

The GMP must acknowledge the link between the goal of inner city revitalization and the need to have an efficient infrastructure system.

2.

The Planning and Building Department should assist the City in taking advantage of any federally or provincially funded programs which can lead towards infrastructure improvement. At present, this involves the Department's role of helping to make decisions and set priorities related to AMPLE. This program is an important component for providing an integrative approach to underground, roadway and neighbourhood improvements.

3.

The special need neighbourhoods and the infrastructure improvements needed in the inner city suggests that civic programs should have a neighbourhood focus.

3.4

SUBURBAN GROWTH MANAGEMENT

Issue Statement Single family dwellings in suburban areas will likely account for about 95% of the total new housing starts in Edmonton to 1992. The concentration of new housing activity in single family dwellings in the suburbs is significant for several reasons: the resulting redistribution of population can create pressure on transportation networks and on the provision of services in a time of limited municipal revenues; there is a substantial inventory of vacant land proposed for multiple family uses in the suburbs for which there appears to be no market demand; the mix of dwelling types and density of suburban community development anticipated by the current GMP will not be achieved over the forecast period; and,

31

Figure 11 Location of Housing Starts

Single Fiy

Dwelling Units 8,000-

Single Family Multiple Units

"

7,000 -

1 Suburban Areas Inner City Areas

7002

6,000 5,000 4,000 3,000 2,000 1,000 0

-

-1 1

2

1

2

1

86

81

2 92

Year Source: Long Range Planning Branch, Planning and Building Departmnent, June 1987

Figure 12 Distribution of Housing Starts

Northeast 5%

Inner City 8% North 12%

Northeast 2%

Southeast 13% North 24%

Inner City 41% WestI 17% Southwest 27% Southwest 12%

West 26%

Southeast 13%

Building Permits 1982-1986

Starts Forecast 1987-1992

Source: Long Range Planning Branch, Planning and Building Department, June 1987

non-contiguous, low density single family residential development may be considered to be less efficient and more costly to build and service than other forms of housing.

The new GMP must address the mix of dwelling types desired within the context of the suburban neighbourhoods.

Observations/Implications 1.

The form and location of new housing construction in Edmonton has become unbalanced, focusing almost exclusively on low density single family dwellings in suburban areas. From 1987 to 1992, suburban single family housing is expected to account for over 95% of the new housing construction in Edmonton (Figure 11). The concentration contrasts sharply with the period in the late 1970's and early 1980's when housing of all types was constructed throughout the city.

The projected dominance of suburban single family housing is explained by a compounding of several factors: i) strong population growth in the 35-44 age group which traditionally is the established family in the "move-up" market; ii) very limited multiple family construction as an ample supply of ,ental housing deters new starts; iii) no government programs to stimulate multiple construction as occurred in the early 1980's and iv) lower mortgage rates.

2.

Within the suburban areas, residential growth has shifted to the southwest, west and north sectors, away from the northeast and southeast. Figure 12 shows these growth areas accounting for 77% of new housing from 1987 to 1992, compared to only about 41% from 1982 to 1985.

As the population growth patterns have altered, the City's response has been to shift infrastructure improvements to service these growing areas. The most noticeable are the improvements identified in the Transportation Department's Five Year Plan (1988-1992). The following are among the more significant improvements in the west and southwest sectors of the City: a proposed start on the western portion of the Outer Ring Road; a series of improvements to 170 Street/Highway 16/100 Avenue; numerous improvements, including interchanges along Whitemud Drive from the proposed Outer Ring Road to Calgary Trail; and, extension of Terwillegar Drive to 23 Avenue.

Although these changes are in response to increased population and employment growth, they will serve to increase accessibility, reinforcing the attractiveness of the areas for new development.

3.

The dominance of new single family housing construction means there is a large inventory of land in suburban areas proposed for multiple construction where there is no apparent demand from 1987 to 1992.

32.

At the end of 1986, undeveloped sites with a potential for over 16,000 multiple family units were serviced and available in the suburban areas. The demand for multiple family units in the suburban areas is expected to be only approximately 150-250 units per year over 1987 to 1992, indicating a vast surplus inventory.

In response to the expectation of a persistent oversupply, the development industry is attempting to have numerous multiple family sites redistricted for single family uses. For example, in 1986, sites which could have accommodated 406 multiple family units were redistricted to allow 91 single family units. In view of the extent of the surplus, pressure for redistricting can be expected to continue and even intensify.

4.

As a result of the ongoing redistricting of multiple family sites in suburban areas, the mix and density of housing types in the suburban community development desired by the current GMP will likely not be attainable from 1987 to 1992. The current GMP wanted to achieve new communities with a mix of dwelling types and a heterogeneous and integrated social structure. What will be experienced from 1987 to 1992 is single family construction with very few multiples. The result will be suburban communities increasingly dominated by single family dwellings. The communities will not likely be heterogeneous because

the availability of only one dwelling type (single family) will neither be appropriate or affordable for the needs of many socio-economic groups.

Suburban areas will increasingly become enclaves of those who can afford and desire single family dwellings.

5.

Fiscal impact assessments of proposed ASP's in Edmonton have shown the costs of developing non-contiguous areas is comparable to the costs of developing contiguous areas, given the arrangements the city has established with the province and the development industry and the nature of current urban service delivery systems. Additional costs to develop non-contiguous areas have been identified over a twenty year development period, but when compared with the total costs of providing and extending municipal services and utilities to contiguous areas, these costs are considered insignificant. These findings are consistent with other North American studies which find the difference in cost between contiguous and non-contiguous development in the order of 1% to 3% greater.

The fiscal evaluation of the proposed Enoch ASP, a development some two miles west of currently urbanized areas in Edmonton, was found to require an additional $7.5 million (1984/85 dollars) in municipal taxes over the period 1985 to 2003 when compared to a scenario similar in all ways except that it proposed contiguous development. The pattern of costs was such that the major costs were incurred after 1999 and net costs in the early years actually favoured the Enoch development. The additional tax levy requirement for Enoch would have raised the composite municipal mill rate for Edmonton an insignificant average of

Figure 13 Additional Tax Levy Requirements to Develop the Enoch ASP Additional Tax Levy ($000) Compared to Base Scenario 2,500 -

Fire Station

2.000 -

1.500

i,000 500 -

,

Roadway and Transit

Annexation

-5 00

I

1990

1985

I

I

I

I

1995

I

I

I

I

I

I

I

2000

I

2005

Budget Year Source: Fiscal Impact Assessment Model, Planning and Building Department, June 1985

Figure 14 Additional Tax Levy Requirements to Develop the Grange ASP Additional Tax Levy ($000) Compared to Base Scenario 120 100 80 60 40 20 0 -20 -40 -60 -80 1985

II

llI

1990

1995

III

2000

Budget Year Source: Fiscal Impact Assessment Model, Planning and Building Department, August 1985

2005

only 1/30 of 1 mill annually above that projected for the comparable contiguous development scenario.

The fiscal evaluation of the proposed Grange ASP, a development approximately 1 mile west of currently urbanized areas in Edmonton estimated a requirement of an additional $518,000 (1984/1985 dollars) in property taxes over the period 1985 to 2003. The major cost differences were to be incurred between 1987 and 1992 as the result of the advancement of planned projects which were postponed to later years in the comparable contiguous development scenario. Because of differences in the costs of development and the type of development proposed in the Grange ASP (mobile homes in two neighbourhoods providing lower assessment growth) the composite municipal mill rate would have been raised on average of 1/23 of 1 mill annually when compared to a contiguous development scenario.

Civic departments have established precedents with developers wishing to commence non-contiguous development that requires the developers to pay for service connections to their area. For other municipal services not requiring tie-ins, the level of service provided to non-contiguous areas is lower than in contiguous urban areas until an adequate service threshold is crossed and new facilities in the area are feasible. As a result, the actual dollar costs of accommodating non-contiguous development within the different urban service systems is considered insignificant, particularly when the total costs over

20 years are compared with an annual municipal tax levy requirement.

Figures 13 and 14 illustrate the additional tax levy requirements necessary to develop the Enoch and Grange ASP's respectively. The additional costs are shown over a 19 year period from 1985 to 2003. An increased tax levy is necessary in the years when the graph is above zero while taxes from the area help offset the costs of providing services in other areas of the city when the graph is below zero.

Planning Approach 1.

The strong market pressure for single family dwellings and correspondingly weak demand for multiples in the suburban areas is inevitable and should be accommodated. The redistricting of long vacant multiple sites to single family should be supported, subject to specific site considerations.

Nevertheless, the goal of balanced and heterogeneous communities remains desirable (GMP policy 5.C.2) as a means of meeting the city's diverse housing needs and of enriching the community experience. In new plans, an effort should be made to ensure multiple family sites are designated; the site planning should allow flexibility of subdivision design so the land could also accommodate single-family dwellings.

Internal staging of neighbourhoods should encourage development of the single family sites first, allowing decisions on possible future districting of multiple family sites to be postponed.

34

2.

Differences in growth rates among the suburban sectors can be expected from 1987 to 1992. The west and southwest sectors, which have generally similar housing market characteristics, will receive the majority of the new housing construction. The growth should be accommodated, with no policy effort to redirect it to other areas. This means that the current GMP approach to staging, through the Council authorization of area structure plans, can be abandoned. However, within existing Council-approved area structure plans where residential development is presently underway, the contiguous development of new subdivisions adjacent to existing subdivisions should be encouraged to maximize the use of existing facilities, wherever possible.

3.

Land supply inventory targets for multiple family in suburban areas as contained in the current GMP do not need to be contemplated.

3.5

TRANSPORTATION

Issue Statement The Transportation Department has recently released its Five Year Transportation Program (1988-1992). The activities of the Transportation Department, related to the construction of transit and roadway facilities, are significant because they can both respond to and initiate land use patterns.

The GMP must ensure continued integration of the land use and transportation planning approaches.

Observations/Implications 1.

The first transportation priority for the next five years is the building of the South LRT to the University of Alberta. Within that time period, SLRT is estimated to cost 27% of the total transportation capital budget of almost $450 million. This project, when completed, should increase the transit ridership levels going into the Downtown and facilitate movement between Downtown and the University.

The second priority is continuous corridor projects; the Whitemud Drive will consume about 15% of the total budget and the Outer Ring Road 14%. These two major projects plus a number of other arterial and intersection projects are responding to the increased traffic resulting from commercial development in the Calgary Trail corridor and adjacent to 170 Street and Stony Plain Road and the growth of population and employment in the west and southwest.

2.

The transportation improvements are significant not only because they will accommodate the existing land uses, but also may spur on new developments. Several examples illustrate this relationship. The development of West Edmonton Mall as a major employment and shopping centre in west Edmonton would have outstripped the transportation capacity of the roads in the mall vicinity. As a result, the City improved the traffic capacities of major routes in the mall area including 170 Street. As traffic capacities were increased on these

35

routes, further new residential and commercial development was attracted to locate on or near these traffic improvements. Examples include the Terra Losa Centre and two major food superstores. Other projects are likely in the 100 Avenue/170 Street corridor.

Arterial couplets such as the Calgary Trail and 100 Avenue - Stony Plain Road couplets, support high traffic flows with minimum crosstraffic movements. The high accessibility and visibility of the couplets is sufficient to attract commercial uses that require high traffic volumes and visibility. Further commercial intensification adjacent to the couplets is anticipated because of the ready availability of visible sites.

3.

A number of arterial roads in the inner city are being improved (for example, 100 Avenue between 149 Street and 170 Street; and the 104 Avenue/Stony Plain "tidal flow"). In effect, these projects in the inner city allow improved connections between the suburban growth areas and the revitalizing Downtown. The road projects can have land use and environmental impacts on the surrounding residential neighbourhoods, even though certain mitigative measures may be built-in to the projects. Where appropriate and agreed to by neighbourhood residents, traffic control schemes may be introduced to limit through traffic intrusion into stable residentialareas.

4.

The current GMP established basic directions for the development of a

comprehensive, integrated transportation system for the city. These directions are appropriate and should continue as part of the new GMP. These objectives are: To develop and maintain a transportation system which supports and enhances the city's growth strategy.

To provide roadway and transit facilities and services which achieve an acceptable level of accessibility and mobility, consistent with the overall objectives of the GMP. To develop and maintain a transportation system which supports and enhances the retention and development of a viable, strong Downtown consistent with the Downtown Area Redevelopment Plan.

To minimize the impact of transportation on inner city communities.

To accommodate crosstown vehicular travel demands on arterial routes which do not penetrate the Downtown.

To provide transportation facilities and services to and within new suburban development which support the approved level of development.

36

Map 7

Agricultural Land Management &PRIMARY

f//////////W

LAND MANAGEMENT

A SECONDARY LAND MANAGEMENT

0

II Source:

Source:

Edmonton General Municipal Plan, as amended, 1986

Edmonton General Municipal Plan, as amended, 19861

To provide ancillary transportation facilities, including pedestrian, bicycle and noise attenuation.

To maintain the quality of the roadway system through ongoing maintenanceof the transportationinfrastructure.

Planning Approach 1.

In view of the mutual impacts between transportation and land use, continued close integration of land use planning in the preparation of the Transportation Department's five year capital plan is desirable.

2.

The objectives for transportation services in the current GMP should be retained in the revised GMP.

3.6

ENVIRONMENT

3.6.1 Agricultural Land Conservation Issue Statement The current GMP has identified over 16,000 hectares as primary and secondary agricultural land management areas where agriculture is expected to continue until the land is urbanized (Map 7).

The future of agricultural land within the City is significant because: The basic premise that the GMP has taken in the past with regard to agricultural land is that its conservation is only temporary until such time as the land is needed for urban development. However, none of the primary and secondary agricultural management areas will be needed for urban purposes prior to 1992; indeed, none will likely be needed within the longer term period of 15 to 20 years.

The City has adopted an Agricultural Land Management Program which has commitments to a number of follow-up activities.

The GMP should provide appropriate policies for these agricultural lands.

Observations/Implications 1.

The present GMP objective concerning agricultural land encourages continuous agricultural production on agricultural land until the land is required for urban development. Accordingly, the Growth Strategy Map designates agricultural areas as "future urban uses", not as "agricultural". However, the need to convert agricultural land to urban purposes is now so far removed that the City should consider this land as remaining agricultural, even in a longer term horizon.

The City's most recent Staging Report (June, 1987) concludes that the present residential land supply is capable of accommodating residential units in excess of 20 years. The primary and secondary agricultural

37

land management areas identified in the GMP go beyond those approved and authorized ASP's implying that these agricultural areas will not likely be required for urban uses for at least 20 years.

2.

Because the need to use agricultural land for urban development is so far in the future, it could be designated as "agricultural" rather than "future urban uses" in the GMP. Since all other undeveloped land is already in approved or authorized ASP's, there is then no need to pursue the concept of staging of residential ASP's in the GMP. Staging until 1992 will evolve on its own in the currently approved or authorized ASP's, as a result of market forces and servicing availability.

3.

In July 1986, Council adopted an Agricultural Land Management Program. This committed the City to a number of activities; including: Fiscal measures include exempting farm buildings from taxes, taxing farm land according to its agricultural use rather than its potential use and not levying a business tax against market gardeners. These measures are supportive of agricultural conservation and there is no need to change them.

Land use measures include the staging of development, a land use and phasing program for lands beyond approved and authorized ASP's, and the desire to have longer term leases on

provincially owned land (i.e., the Northeast). The issue of staging has been addressed in Section 3.4.1. Extending provincial leases is valuable to the premise of agricultural conservation.

Changes to city regulations include incorporating agricultural policies into the GMP, applying agricultural subdivision regulations through the Municipal Planning Commission, applying land use bylaw regulations, and revising ASP terms of reference. The first three of these have been done and the last is now underway.

Planning Approach 1.

There is no need for the primary or secondary agricultural land to be used for urban development within the five year plan period, nor likely within the longer 15 to 20 year time horizon. This conclusion, combined with the City's commitment to conserving agricultural land for as long as possible, leads to the following: The new GMP should indicate that primary and secondary agricultural land management areas will not be developed until land in the currently approved or authorized ASP's is substantially developed; These agricultural areas should be clearly designated for agriculture use in the new GMP.

Map 8

North Saskatchewan River Valley

and Ravine System

FBI II

I

DAWSON 11ยง AV g

STONY PLAIN ROAD

BRIDGE

HIGH VNU

IASPER

II LEVEL BRIDGE

)1

&I

Source: North Saskatchewan River Valley Area Redevelopment Plan Bylaw 7188, Feb. 1985

2.

Most of the activities outlined in the Agricultural Land Management Program are still appropriate and can continue. The main exception to this is the need to do a phased land use study for areas beyond approved and authorized ASP's. Development of these areas is so far into the future that this study is not necessary.

3.6.2 North Saskatchewan River Valley and Ravine System Issue Statement The North Saskatchewan River Valley and ravine system is the City's dominant physical feature. As a unique natural feature of the city (Map 8), the system is significant for several reasons: The natural character and environment of the river valley and ravine system may come under pressure from competing commercial, residential, transportation and industrial uses; and The City's current policies recognize the need to protect river valley lands for public park and recreational uses as well as protecting sensitive environmental areas and hazard lands; increased demand for recreational opportunities are due to changes in the lifestyle characteristics and needs of the population.

The GMP must balance among the competing land uses and recognize existing, approved policies.

Observation/Implications 1.

The current GMP recognizes the potential conflict between the objectives of protecting the river valley as a unique natural resource and its use for transportation, utilities and residential development. In addition, the river valley and ravine system have environmental constraints (soil erosion, bank instability and flooding) which limit development. The GMP stresses land use and development control in the river valley based on appropriate environmental protection principles; proposals for public and discretionary developments are to be evaluated through an environmental impact screening assessment.

Limited acquisition of privately owned land for public park purposes is encouraged through the subdivision process and the continued development/proposed extension of the Capital City Recreation Park.

(The City is negotiating with the remaining land owners within the existing Capital City Recreation Park boundaries to purchase their property for public park purposes.)

39

2.

The North Saskatchewan River Valley Area Redevelopment Plan (February 1985) indicates that the majority of the river valley and ravine system will be used as an environmental protection area and for major urban and natural parks. The goals of the Plan are: "1.

to ensure preservation of the natural character and environment of the North Saskatchewan River Valley and its Ravine System.

2.

to establish a public metropolitan recreation area.

3.

to provide the opportunity for recreational, aesthetic and cultural activities in the plan area for the benefit of Edmontonians and visitors of Edmonton.

4.

to ensure the retention and enhancement of the Rossdale and Cloverdale communities in the River Valley."

The River Valley Plan puts forward a series of objectives and policies relating to parkland development, environmental protection, transportation, major facilities and natural resource development, agricultural land use, residential land use and Central Area land use.

Detailed planning is provided in the Rossdale and Cloverdale Area Redevelopment Plans, approved in 1986.

3.

In its Management Plan (December 1985), the Parks and Recreation

Department anticipated increased demand for recreational services as a result of factors such as reduced recreational travel within Alberta and a new emphasis on the entertainment and physical value of recreation. These trends have placed pressure on the availability and quality of recreational opportunities for residents. This will ultimately place more emphasis on the river valley and ravine system to provide recreational opportunities to a city-wide population.

4.

When Edmonton annexed a large portion of land in 1982, the river valley and ravine system was expanded from 3200 ha to over 7400 ha.

Due to the availability of provincial funding and the organizational ability of various outdoor recreationgroups, a number of walking trails in the annexed river valley lands have been 'blazed' for multi-seasonal use. The current GMP, however, serving as a general policy document, designates the annexed river valley lands as part of an environmental protection area to control and guide development until the areas are needed for public park purposes.

40

Planning Approach 1.

The goals of the North Saskatchewan River Valley Area Redevelopment Plan should be confirmed in the revised GMP. As well, the need for an environmental impact screening and assessment of all proposed public developments and development on public land should be reaffirmed. In this way, the river valley and ravine system can be protected for its public park and recreational opportunities while maintaining an appropriate balance of land uses. Details outlining specific land uses and the policies and program commitments to implement objectives are contained in the approved Area Redevelopment Plans for the River Valley, Rossdale and Cloverdale.

3.6.3 Energy Facilities Issue Statement Energy pipelines, oil and gas facilities and major electric transmission corridors in Edmonton present a unique planning problem because of the nature of their relationship with urban development. These energy facilities are a strategic issue because: The City has adopted interim pipeline guidelines for safeguarding the integrity of pipelines as the best means to promote public safety;

The City has adopted guidelines for the integration of oil and gas facilities with urban development, based on the premise that the two can coexist if there is proper planning.

The GMP must support the approach taken in integrating energy facilities with urban development.

Observations/Implications 1.

Pipelines are significant in land use planning because, with Edmonton's role as a major petroleum refining and petrochemical centre, the length of major energy pipelines within the City is approximately 600 kilometres.

Initially, the pipelines were seen as innocuous installations, being construed as a nuisance to development rather than as a potential safety hazard. The Mill Woods pipeline rupture in 1979, and the ensuing spread of propane vapour and liquid propane which caused the evacuation of 19,000 persons, showed the potential safety hazards of the major energy pipelines.

The City adopted interim pipeline guidelines in May 1982, with the basic premise being ". . . that the most immediate, effective and

economical municipal action which can be undertaken to improve the level of public safety lies in the ability to safeguard the integrity of pipelines." Following from this, the guidelines have two objectives: to achieve a clear definition of pipeline rights-of-way as special purpose

41

corridors; and, to alleviate the possibility of third party damage to pipelines (one of the principal causes of pipeline accidents has proven to be third party damage during servicing and construction). Given this premise and these objectives, the interim guidelines deal with creation of pipeline rights-of-way, setbacks, fencing, information required in the subdivision process, and landscaping.

2.

As a result of the 1982 annexation, numerous oil and gas facilities were incorporated within the City boundaries, especially in the west end.

The annexation was followed by an influx of applications for new resource installations; mineral owners and resource operators were concerned with exploiting existing reserves prior to the surface lands being occupied by urban development. With an operating life of 10 to 20 years in many instances, it was considered likely at the time of annexation that urban uses would encroach on the resources before they were completely depleted.

As with pipelines, oil and gas facilities can cause potential problems to public health and safety. In addition, there are a number of nuisance considerations such as noise, aesthetics, odour, and dust. The Energy Resources Conservation Board held an inquiry in 1983 to consider the coexistence of resource installations and urban development. While the Board concluded that coexistence could be successfully achieved, it realized the need for municipal action since the Board has no direct control over development activity near resource operations.

In September 1985, the City adopted policy guidelines for the integration of resource operations and urban development. The report agrees with the Board's conclusion that successful coexistence can be achieved with proper planning. The policy guidelines deal with the following topics: resource consolidation plans, development setbacks, urban design considerations, surface improvements, operating guidelines, and submission and circulation requirements of development applications.

Planning Approach 1.

The current GMP has two policies dealing with pipelines. One is the desire to avoid fragmentation of land by limiting pipelines to exclusive transportation/utility corridors (9.G.1), while the other states that the City will establish guidelines for subdivision adjacent to pipelines (9.G.2). The first policy is a basic one and should be maintained in the GMP. The second policy has been achieved through adoption of the interim guidelines, allowing its replacement with a policy that encourages the continued application of the pipelines guidelines. In addition, the premise of preserving the integrity of pipelines, plus the objectives of clearly delineating pipelines and alleviating third party damage (as stated in the guidelines) should be reiterated in the GMP.

2.

At present, there are no GMP objectives or policies for oil and gas extraction or processing facilities. However, there is a need to add an objective related to the successful integration of resources with urban

42

development. Since annexation, the idea of resource consolidation plans has been the most fundamental policy measure for dealing with this integration as resource applications are reviewed concurrently with ASP's. Because it is so basic to the attainment of integration, a policy on resource consolidation should be added to the GMP. 3.

There are also no GMP policies for major electrical transmission facilities. Guidelines are necessary to obtain the appropriateintegration of these corridorswith urban development.

3.6.4 Environmental Areas Issue Statement Natural areas within a city provide a wildlife habitat, visual relief from the urban setting and help to meet the recreational needs of urban dwellers. Such areas are significant within the City of Edmonton because: over 1,000 discrete natural sites exist within the City; there are no detailed guidelines for incorporating these areas into urban developments.

The GMP should plan for environmental areas.

Observations/Implications 1.

Prior to the annexation of January 1982, the majority of natural areas within the City of Edmonton were contained within the river valley and ravine system. However, the annexed area included numerous and diversified natural areas. In 1983, an initial identification of environmentally sensitive areas within the newly annexed areas was completed, revealing over 1,000 natural sites including all woodlands of over one hectare and all sloughs and wetlands greater than .1 hectares.

This preliminary assessment needs to be followed by detailed inventories of flora and fauna with priorities for protection established based on such factors as uniqueness, vulnerability and size. The opportunity remains to conserve a significant number of the natural areas because most are in areas where no development is anticipated before 1992.

2.

Policies in the present GMP commit the City to establishing guidelines for environmental impact statements and to preparing environmental impact statements for new suburban growth areas. To date, some preliminary background work has been done, but no formal, detailed guidelines have been prepared. The current Area Structure Plan terms of reference require "an assessment of the environmental impact of the proposed development on the natural environment and the manner in which the natural site characteristics will influence the development proposal." The application of this guideline has had a wide interpretation; but it has seldom led to detailed identification of sites

43

I Map 9

Restricted Development Areas

!

Transportation and Utility Corridor R.D.A. Environmental R.D.A. SCapital City Park R.D.A.

10I ,_

..:.:.. :.:i

.

.. .......

Edmonton-Fort Saskatchewan R.D.A.

_

CapitI City Park R.D.A.

I iiii ii

. ............

...

...

D... ..

Edmonton-

II Source: Alberta Environment

I I I I

and consideration of how to incorporate the most appropriate sites into the development. Without detailed guidelines, the tendency will probably be to allow natural areas to gradually disappear.

3.

Environmental protection is also difficult because the majority of sites are in private ownership, so that the City can only have influence through such guidelines rather than through direct ownership. In a modest growth economy, concern with saving natural areas can often be seen as a costly and unnecessary imposition in the development process. Any guidelines developed by the City should stress the quality of development which can result from proper incorporation of natural areas and the ensuing possibility of recovering any additional costs through higher market value of the resulting development.

Planning Approach 1.

The revised GMP should recognize the existence of natural areas and their importance within the urban setting. The intention to establish detailed guidelines and to use these to prepare environmental impact statements for newly developing areas should be reconfirmed and implemented.

3.6.5 Restricted Development Areas Issue Statement There are three types of Restricted Development Areas (RDA's) within the City of Edmonton; a multiple use transportation/utility corridor, an environmental RDA, and the Capital City Recreation Park (CCRP) (Map 9).

The RDA's are significant because: the transportation/utility corridor (TUC) provides a designated corridor for the Outer Ring Road, power lines, energy pipelines, and other utilities; the TUC presents a challenge and opportunity for urban development and environmental protection if properly integrated with adjacent land uses; and, the CCRP provides regionally significant opportunities for active and passive recreation, while protecting an environmentally sensitive resource.

One issue is to ensure the maximum use of the transportation/utility corridor.

For the environmental RDA, the issue is the incorporation of a planning approach consistent with that for the environmental areas (Section 3.6.4).

44

Observations/Implications 1.

The Edmonton transportation/utility RDA was created by the Provincial Government in 1974 to establish a multiple use transportation/utility corridor around the City. The primary reasons for using the corridor approach included: avoiding the fragmentation of land by consolidating several facilities; minimizing environmental disruption by restricting utility development within the corridor, thereby protecting other areas; safety; efficiency of land acquisition, with the Province being the single authority; land use certainty within the corridor, thereby making adjacent landowners aware of land use plans.

Since its designation, the RDA has fulfilled its intended role as a multiple use corridor. A number of major power lines and pipelines have been incorporated within its right-of-way and plans include using it for the Outer Ring Road.

One unresolved issue related to the RDA is that of penetrator corridors.

Various pipelines and power lines have got to reach the corridor rightof-way from areas beyond the corridor. A residential development beyond the RDA, for example, could preclude a pipeline from going beneath that land use. Yet the City cannot avoid this kind of problem because penetrator corridors have not been designated by the Province.

The issue of penetrator corridors may become more significant as

development begins to occur beyond the RDA. Another problem linked with the presence of the RDA is crossing costs.

For example, the Province has been under pressure from developers to front end the costs of servicing that must go across the corridor. The Province believes that the corridor has been identified as an entity for a long time and must be considered as part of the cost of normal development; further, crossing one major corridor may be less costly and more conducive to development than crossing a number of fragmented lines.

2.

The transportation/utility corridor RDA has often been seen as a "wasteland" in which land uses are "frozen". In the last few years, the Province has tried to change this image so that the RDA is seen as an opportunity for innovative planning. A wide variety of secondary land uses is encouraged; this includes agriculture, recreational uses (e.g., baseball diamonds, driving ranges, walking trails); tree nurseries; garden plots; industrial storage.

The Province has also become concerned with "residual land", the small strips of land that can be left between the uses proposed for the RDA and adjacent land uses. As an alternative, the Province has been allowing limited development in the RDA so that the adjacent land uses can benefit from sound planning and development.

45

In both cases, i.e., secondary land uses and residual land uses, the concern is with integration through land use planning and development.

3.

There are two environmental RDA's within the City: the Edmonton Fort Saskatchewan to the northeast and Edmonton-Devon to the southwest; as well as the Capital City Recreation Park. The purpose of these RDA's designation is to protect the natural environment.

Similarly, the North Saskatchewan River Valley Area Redevelopment Plan, approved by the City in February of 1985, has as one of its goals the preservation of the natural character and environment of the river valley and ravine system. However, to develop any of the RDA areas into park space, as the City may eventually want to do (e.g., through developing of bicycle paths), would first require ministerial consent from the Department of the Environment.

Planning Approach 1.

The revised GMP should recognize the transportation/utility corridor RDA as a multiple use corridor which has been designated to accommodate the ring road, power lines, energy pipelines, and other utilities. The revised GMP should commit the City and other major utilities to using that corridor to its full potential wherever possible while simultaneously avoiding fragmentation elsewhere.

2.

The issue of penetrator corridors requires consultation with surrounding municipalities, possibly through the Edmonton Metropolitan Regional Planning Commission, and with the Province.

The other unresolved issue, that of the cost of crossing the RDA, may be alleviated through the Revolving Trunk Fund. In either case, these issues can be resolved through the ongoing implementation of the GMP.

3.

The revised GMP should recognize the need to integrate adjacent land uses into the transportation/utility corridor RDA through appropriate secondary land uses or minor intrusions into the RDA.

4.

The revised GMP should acknowledge the existence of the environmental RDA's within the City and their goal of environmental protection as well as the recreation potential of the Capital City Recreation Park.

46

3.6.6 Historic Preservation Issue Statement The preservation of historic and architecturally significant buildings and character areas contributes to the environmental quality of the City. Historic buildings and areas provide educational and cultural benefits because they provide links with important events in our history and provide life-size examples of the architectural styles of the past. Historic buildings enhance the visual quality of the environment by adding variety to the built form.

Furthermore, the height and scale usually create attractive, pedestrianoriented spaces that add diversity and interest to the City-scape.

The GMP must recognize the need for a program with incentives to preserve historical and architecturally significant buildings and character areas.

Observations/Implications 1.

The current abundance of vacant office space has created difficulties in maintaining and leasing heritage buildings; underutilized buildings have resulted in a severe financial strain on the owners. In some cases, there are financial advantages to demolish underutilized buildings in order to avoid paying the building portion of the property taxes. As a result, important historic resources are being demolished since adequate mechanisms to prevent their loss are not in place. These mechanisms would include a number of incentives to promote the retention of designated historic resources.

2.

At the present time, there is a lack of adequate design regulations in place to prevent inappropriate alterations to some of the City's finest historic and architecturally significant buildings. To be effective, these design regulations should be included in both the Land Use Bylaw and the appropriate statutory plans. Two areas of particular concern are the Downtown and Old Strathcona. The protection and enhancement of the historic resources in these areas will help to rejuvenate the urban environment and can play an important role in the revitalization of the Downtown and Old Strathcona.

Planning Approach 1.

The GMP should provide for a heritage preservation program that addresses the issue of development incentives for the conservation of buildings of architectural or historical significance on the Register of Heritage Buildings. These incentives would address such areas as tax relief for heritage buildings, leasing of civic office space in Downtown heritage buildings, and a revolving fund to assist heritage property owners in restoration and renovation. The incentives should also address the establishment of character areas.

47

3.6.7 Urban Design Issue Statement Over the last few years, following the building rush of the late 1970's and early 1980's, more attention has been paid to urban design. Urban design is particularly significant in a city generally lacking in dramatic natural topographic features, with the exception of the North Saskatchewan River Valley. Urban design can result in a better quality of life by offering variety and interest to the urban form, and by enhancing areas of special character, cultural, or historical interest. The GMP must recognize the role of urban design as partof the development process.

Observations/Implications I1.

The City, through the activities of the Interdepartmental Project Coordinating Committee, has embarked upon a "Beautify Edmonton Program". The aims of the Committee are to identify, coordinate,direct, and stimulate beautification efforts. Public/private partnerships will play a major role in achieving these aims.

2.

The City has a number of "special areas" which have received the applicationof unique urban design standards. These include the River Valley, the Downtown, and Chinatown. In addition, a number of heritage buildings and areas(both commercial and/or residential)have been preserved. Efforts in these directionswill continue.

3.

The gateway entrances to the City and to the Downtown, by highways and major roads, give people immediate impressions of the City.

Recently, increasedawareness of this has resulted in efforts to improve the aesthetics ofgateway entrances.

4.

Urban design can contribute to the quality of life in both the inner city and developing areas. This has led to increasing concern with a variety of residential amenity standards such as public areas, bikeways, streetscapes, andlandscaping.

5.

Edmonton presents a unique natural environment in which to build.

Development should recognize and enhance this character by relating specifically natural features (such as topography and vegetation) and climate.

Planning Approach 1.

The role of urban design in the urban form needs to be embodied in the GMP. This will include recognition of the significance of gateway entrances, special areas, heritage and cultural buildings and areas, working with the natural environment, and development standards throughout the City. While the GMP will establish general principles, details for urban design will be embodied in local area redevelopment plans, the Land Use Bylaw, the application of development standards. and by working with the development industry on site-specific applications.

48

4.0

CONCLUSIONS

This paper has examined a series of strategic issues and identified possible planning approaches to resolving the issues.

Inner City One issue appears of highest significance: the renewal of the inner city and the special needs neighbourhoods. Although the other issues discussed are important, the inner city is considered of higher priority for the following reasons: the geographical extent of need; the financial requirements and implications for the City; and, the problems cross traditional departmental lines, requiring a corporate approach, while the other problems can be handled through the normal development procedures.

New Policy Approach A new policy approach at the city-wide level is needed because the current GMP is no longer capable of respondin.ig adequately to the land use changes now underway in Edmonton. In a number of key areas, such as the approach to regulating development, the inner city, the shift to service employment in industrial areas and the emergence of megastrips, the current policies fail to

accommodate the changes and to provide for the mitigation of adverse land use consequences.

The features of the new policy approach which is now required centre on the following: a strategic orientation rather than a development control or regulatory emphasis; a less prescriptive approach recognizing the importance of encouraging and facilitating growth; and, flexibility and responsiveness to deal with new situations because of the cyclical nature of economic change and the emergence of new technologies influencing land use patterns.

Future Activities The issues and planning approaches will be the subject of discussion and review by the departmental representatives, special interest groups and Council. Once the issues and approaches are confirmed, the next activities will be to prepare draft goals, objectives and policies for the new GMP. The draft GMP is expected to be available in the fall of 1987.

49

SOURCES Section 1.0 Introduction 1.

City of Edmonton Planning and Building Department, 1987 General Municipal Plan Review Terms of Reference, 1987.

Section 2.2 Economic Prospects 1.

City of Edmonton Forecast Committee, Socio Economic Forecasts 1987-1992, City of Edmonton, February 1987.

2.

City of Edmonton Planning and Building Department, Industrial Land Use and Employment in Edmonton, Research Paper No. 12, September 1986.

3.

DavidJ. A. Douglas and Associates Ltd., City of Edmonton Planning and Building Department, Edmonton Economic Base Analysis, Final Report, July 1986.

4.

Edmonton Metropolitan Regional Planning Commission, 1986 Preliminary Census Figures.

5.

Government of Alberta, Report and Decision Concerning the Edmonton Annexation Application, June 1981.

6.

Statistics Canada, Population: 93-969, 1981.

Economic Characteristics, Catalogue

Section 2.3 Demographic Prospects 1.

City of Edmonton Forecast Committee, Socio-Economic Forecasts, 1987.

2.

City of Edmonton, Civic Census 1981-1983, 1986.

3.

City of Edmonton, General Municipal Plan (as amended), Vols. I and II, 1980.

Section 2.4 Need for New Planning Approaches 1.

Edmonton Enterprise, Mayor's Business Policy Task Force, Final Report 1986.

2.

City of Edmonton Council, Mayor's Business Policy Task Force (E.1.b. (5)/6- December 10th, 1986), January 13, 1987.

Section 3.1 Employment 1.

City of Edmonton Forecast Committee, Socio-Economic Forecasts, 1987.

2.

City of Edmonton Planning and Building Department, Industrial Land Use and Employment in Edmonton, Research Paper No. 12, September 1986.

3.

City of Edmonton Planning and Building Department, Planning to Accommodate Megastrip Development, Research Paper No. 15, February 1987.

4.

City of Edmonton Planning and Building Department, Town Centre Development in Edmonton, Research Paper No. 17, January 1987.

5.

City of Edmonton Planning and Building Department, Status of Industrial Land in the City of Edmonton, December 1986.

6.

City of Edmonton Transportation Department, Transportation Program (1988-1992), April 1987.

7.

Development Consulting Group Ltd., Mill Woods Town Centre, Development Potential Study, Edmonton, Alberta, October 1986.

8.

City of Scarborough, Planning Department, Official Plan Employment Review: Proposals for Employment Policies and Land Use, 1985.

Five Year

Section 3.2 Downtown

1.

City Forecast Committee, Socio-Economic Forecasts, 1987.

2.

City of Edmonton Planning and Building Department PLANS Information System, May 1986, File No. ECON 175.04.10.

3.

City of Edmonton Transportation Department, CBD Transportation Study, Working Paper #3: Five Year Roadway Requirements, July 1986.

4.

City of Edmonton, Downtown Area Redevelopment Plan Bylaw, Consolidated Edition, Bylaw 6477 (as amended), 1985.

5.

City of Edmonton Planning and Building Department, PRIDE Program Information Kit.

Section 3.3 Inner City Revitalization 1.

City of Edmonton Forecast Committee, Socio-Economic Forecasts, 1987.

2.

City of Edmonton Planning and Building Department, Edmonton Demographic Indicators, 1986.

3.

Hussey, D. and E. Egyedy, Assessing Retail Development in Edmonton: Use of the Retail Impact Model, Research Paper No. 6, Edmonton Planning and Building Department, February 1987.

4.

City of Edmonton, Alberta Avenue/Eastwood Neighbourhood Improvement Plan, Bylaw 5748, 1979.

5.

City of Edmonton, Riverdale Community Plan, Bylaw 5166, 1977.

6.

City of Edmonton, Boyle St./McCauley Area Redevelopment Plan, Bylaw 5980, 1981.

7.

City of Edmonton Planning Department, Social Objectives and Social Development Proposals for the Boyle St./McCauley Area, 1981.

8.

City of Edmonton, Coliseum Station Area Redevelopment Plan, Bylaw 6929, 1982.

9.

City of Edmonton, Parkdale Area Redevelopment Plan, Bylaw 6765, 1983.

10.

City of Edmonton, Downtown Area Redevelopment Plan Bylaw, Consolidated Edition, Bylaw 6477 (as amended), 1985.

11.

City of Edmonton, Scona East Area Redevelopment Plan, Bylaw 8156, 1986.

12.

City of Edmonton, West-Ingle Area Redevelopment Plan, Bylaw 7469, 1985.

13.

City of Edmonton Water and Sanitation Department and Transportation Department, February 1987.

14.

Statistics Canada, 1981.

15.

City of Edmonton, Civic Census, 1986.

16.

City of Edmonton, Planning and Building Department, Community Attitude Surveys for the Six District Planning Areas, 1984-1985.

17.

City of Edmonton, Planning and Building Department, Working Papers Series for the Six District Planning Areas, ongoing.

18.

City of Edmonton Planning Department, Older Neighbourhoods, Volume I (Planning Perspective), Volume II (Neighbourhood Profiles), 1977.

19.

City of Edmonton Planning and Building Department, Neighbourhood Selection Report, 1987.

20.

Canada-Manitoba-Winnipeg, Tripartite Agreement 1986-1991, Winnipeg Core Area Initiative, (undated).

Section 3.4 Suburban Growth Management 1.

City of Edmonton Forecast Committee, Socio-Economic Forecasts, 1987.

2.

City of Edmonton Planning and Building Department, Status of Residential Land, December 1983.

3.

City of Edmonton Planning and Building Department, Status of Residential Land, December 1985.

4.

City of Edmonton Planning and Building Department, Status of Residential Land, December 1986.

5.

City of Edmonton Planning and Building Department, Housing Market Report, June 1987.

6.

City of Edmonton Planning and Building Department, Fiscal Impact Assessment Model, 1985.

7.

Richard B. Peiser, "Does it Pay to Plan Suburban Growth", Journal of the American Planning Association, Autumn 1984.

8.

City of Edmonton Planning Department, Urban Growth Strategy Phase I Final Report, 1981.

Section 3.5 Transportation 1.

City of Edmonton Transportation Department, Five Year Transportation Program, 1988-1992.

2.

City of Edmonton, General Municipal Plan (as amended), Vols. I and II, 1980.

Section 3.6 Environment 1.

City of Edmonton, North Saskatchewan River Valley Area Redevelopment Plan, Bylaw No. 7188, February 1985.

2.

City of Edmonton Parks and Recreation Department, Parks and Recreation Management Plan, December 1985.

3.

City of Edmonton Planning and Building Department, Agricultural Land Management Program, May 1986.

4.

City of Edmonton Planning and Building Department, Policy Guidelines for the Integration of Resource Operations and Urban Development, September 1985.

5.

Alberta Environment, Capital City Recreation Park Restricted Development Area, Alberta Regulation 9/78.

6.

City of Edmonton Planning and Building Department, Interim Guidelines for the Integration of Transmission Pipelines and Urban Development, May 1983.

7.

City of Edmonton Planning and Building Department, Staging Report, June 1987.

8.

City of Halifax Planning Department, An Evaluation and Protection System for Heritage Resources in Halifax, 1977.

I I 1 I I I I I I I I I U I I I I U I

APPENDIX A

Map Al

Major Industrial Areas RESTRICTED DEVELOPMENT AREA

3

SUBURBAN INDUSTRIAL AREAS INNER CITY INDUSTRIAL AREAS

E IINDU EB

R

N D

E

WINTER

IC I° ....

IIA

,

S

E STG

T

ENOR HWEST

-

A-

INDU T IAL

I SOUTH

ADOWS' STRIAL

USTRA *

M

To N RESE

ELLIE RSLII: IND JSTRI L

3

Source: Edmonton General Municipal Plan, as amended Source: Edmonton General Municipal Plan, as amended

Map A2

Traffic Districts

29

.

I

II II .1

I7_AV .23 ATRAIL 2

8 i7

AVE

8

.V

rI, 3

9AV

Ila,,

t iijI A

-

27

1

4,

S

6 AV

's

12 CLAREVIEW

1 DOWNTOWN CORE

6JASPER PLACE

I

23AVE

4

C.2

2

23 KASKITAOVE

16 SOUTH INDUSTRIAL

27 WEST EDMONTON

2UNIVERSITY 13 CAPILANO 24 DAON80 1 DOWNTOWN CORE 2 UNIVERSITY

12 CLAREVIEW 13 CAPILANO

23 KASKITAYO 24 DAON80

3 SOUTHGATE

14 BONNIE DOON

25 HERITAGE VALLEY E.

3 SOUTHGATE

14 BONNIE DOON

25 HERITAGE VALLEY E.

4 RIVERBEND

15 MILLWOODS

26 HERITAGE VALLEY W.

5 JASPER PLACE

16 SOUTH INDUSTRIAL

27 WEST EDMVONTON

6 WEST J.P.

17 MISTATIM

28 WINTERSURN

7 N.W. INDUSTRIAL

18 CASTLE DOWNS

29 LAND BANK

8 NORTH CENTRAL

19 LAKE DISTRICT

30 N.E. EDMONTON

9 CALDER

20 S.E. DISTRICT

31 CLOVERBAR

10 LONDONDERRY

21 MEADOWS

11 BEVERLY

22 DOWNTOWN FRINGE

4 RIVERBEND

6 WEST J.P.

7 N.W. INDUSTRIAL 8 NORTH CENTRAL

15 MILLWOODS

17 MISTATIM

IS CASTLE DOWNS 19 LAKE DISTRICT

Source: Transportation Department Source: Transportation Department

26 HERITAGE VALLEY W.

28 WINTERBURN 29 LAND BANK

30 N.E. EDMONTON

Map A3

Inner City Census Tracts with Population Loss Between 1981 & 1986

Greater than 5%

I8 81 7804

..

IIF

7506

.....

" .':i ,

7-

7,

It

79

67\

70

,

5?102

I2i

67W1 0

7

......

L4I 5102

S

92 5

7I .110

Sore

1981198

Cii

101

9 , .. ,,

6I06

ID I9

918

Censu

Source: 1981,1986 Civic Census

90.10

Map A4

Inner City Census Tracts with Buildings Requiring Repair Significantly Higher than City Average,1981 Ii

....................

81

......

7,, 6

820

N69

752 65D3--

7

650170; M.

;,,,.-.

5102

33

2

84

73,o -.

1

1 93

t002

I' i 2

Source Sttstc

4..,.

1oo '

-"

Canada198, 91.9

Source: Statistics Canada, 1981

15

:D.I--"

'i"

Map A5

Inner City Census Tracts with Unemployment Significantly Above City Average,1986

I

80 81

7804

79

78D .

... ....

2

34w

I1 23 :......

""..

10 ............. k.

11 w e

...

x.,,

I

~91

.... ',. ,

.2

16

ti 1

ft

.2 9

Source: 1986 Civic Census

go e

Map A6

Inner City Census Tracts with Percentage

of Seniors Significantly Above City Average, 1986

80 ata

7.

7801

7 .

b

j

It 333

"..

62

r

51090.0

77

&01

84

02?3

,60412

10

...... ..... ....... ...... ......

10 018

'5,01~

-

191

292 *

1501

'

.

92

Source: 1986 Civic Census

6o

'......:"..

Map A7

Inner City Census Tracts with Percentage of Low Income Families Significantly Above City Average,1981

80 81

82

7804

17:777tic3:7-7" 1...::;.;. :,!!'( 1

79

t 7506

k i

83 6513311 • •• •

51.02

6.01 r ........

84

604=, ....

18

' t 702

1501 i 16 0 1

606

75§51-9 0.1 0 1.01

"7

4

,

I

0X17

F7 F 1.1 • .3!

171 4

' 191ga09 4 ;9:1.091 I

92

Source: Statistics Canada, 1981

,

; 006.

•

Map A8

Inner City Census Tracts with Percentage

of Single Parent Families Significantly Above City Average, 1981

80 81 -4

'

79

.. ......

' "7W, '1"7

V?

16

â&#x20AC;˘ 4 .3

:,,'.i

n79 71

:

-

04

'"7.6

; ,

, 75

2102

821

S

:6C

is..43

a 02

................... .... .........

2 2_0

:!

:. : ..,

, .....1 t02,5 1-5. , 291

"-

-,

.

501

5075067

' ........

1'

33

,!T?

o . . ........

9094

500

o...

18

I, ,'50 o,

..70.......

.

1. ~ J

921

90.1

'"

. ,. .

,

. .,

92

Source: Statistics Canada, 1981

.--

!'"'

..... . !

~

-

: ... ,...

..

." ..

.

,.

.-.:... ... :