Edmonton (Alta.) - 1990 - Edmonton general municipal plan_bylaw 9076 (1990-11)

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Edmonton gene a muricipal Edmonton Planning a

EDMONTON GENERAL MUNICIPAL PLAN BYLAW 9076

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PLANNING AND DEVELOPMENT

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TABLE OF CONTENTS Page Glossary of Terms

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Preamble

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Plan Framework

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Inner City

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Suburban Areas

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Business and Employment Areas

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Downtown

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Urban Design and Heritage

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Agriculture and the Natural Environment

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Transportation and Utilities

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Implementation

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LIST OF MAPS Page Map 1 Map 2 Map 3 Map 4 Map 5 Map 6 Map 7 Map 8

Development Concept Special Needs Neighbourhoods North East Edmonton Activity Centres The Downtown (PRIDE area) Agricultural Land Management River Valley Area Redevelopment Plan Areas Suitable for Local Planning

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LIST OF CHARTS Page Chart 1

Growth Strategy Highlights

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GLOSSARY In this General Municipal Plan, the following words have been defined to assist in the interpretation and application of objectives and policies.

Amenities All public facilities, cultural activities/programs and environmental features that serve to enhance the physical setting of a community.

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Development Concept Plans Plans at a generalized level of detail for larger suburban areas identifying neighbourhood boundaries, major land uses such as residential, industrial, commercial, institutional and also showing transportation networks and servicing concepts.

Downtown The portion of the central business district represented by the Pride Program, whose boundaries are shown on Map 6.

Family Housing This type of housing refers to dwelling units which have qualities deemed desirable for households with children such as direct access to the unit from grade, private outdoor amenity or yard space, acoustical privacy between units and street addressing for identity.

Ground Related Multiple A form of residential building containing three or more dwelling units, each having direct access to grade level.

Heavy Industry

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A manufacturing or processing activity

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(a) which may consume larger amounts of land, energy, water, or other natural resources in its operation, or which requires access to transportation facilities capable of handling bulk materials or commodities; or

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(b) which may have a detrimental effect on the environment through the following: high volumes of heavy vehicle movement; pollution of air, soil or water; nuisance as a result of noise, smoke, odour, dust,fumes, glare or humidity; or hazard arising from fire, explosion, radiation or contamination.

Heritage Building This refers to a building covered by Council's policy to encourage the designation and rehabilitation of Municipal Historic Resources in Edmonton.

Infill Development Development in the inner city areas of the city occurring on small, vacant or under-utilized land, behind or between existing development, and which is compatible with the built-form characteristics of surrounding development.

Inner City This area is shown on Map 1 and includes both the older neighbourhoods generally built prior to 1950, predominantly on a grid-street pattern, and mature suburban neighbourhoods built prior to 1960 and now fully developed.

Linkage Physical means of pedestrian related connection of one building or activity centre with another, by means of walkway, pedway or sidewalk.

Mixed Use Developments Developments designed for more than one type of land use on the same parcel of land such as residential and retail development; residential, office/retail development; office/warehouse development, etc.

Neighbourhood A residential area, designed as a separate unit, having an appropriate mix of housing and dwelling types with convenience-type commercial facilities, and where appropriate, schools or park facilities.

PRIDE Program The PRogram to Improve Downtown Edmonton was first approved by Council in 1983. Its goal is to reaffirm downtown as a social, cultural and economic heart of the city. By building partnerships between public and private sectors, PRIDE aims to maximize public and private resources for downtown revitalization. The key action areas identified by PRIDE are: physical improvements to public and private spaces, parking improvements, increased housing, promotions and special events, streamlined civic procedures, increased retail activity, public communications and enhanced social and cultural environments.

River Valley Refers to the North Saskatchewan River Valley, its banks and the banks of its tributary system within the city of Edmonton.

Trade and Service Is a term used to describe the service-producing, as opposed to the goods-producing sector. The service-producing sector includes both commercial and non-commercial services such as transportation and communications, wholesale and retail trade, finance, insurance and real estate services, community, business and personal services, as well as public administration, education, health and welfare services.

Town Centre A suburban activity centre which may include commercial uses, offices, recreational uses, housing and a transit centre.

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EDMONTON GENERAL MUNICIPAL PLAN Preamble

Background The 1990 Edmonton General Municipal Plan (GMP) presents a strategic approach for the most pressing land use related issues that Edmonton faces over the next five to ten years.

Initiation of the preparation of a new General Municipal Plan began with the Council adoption of recommendations contained in the "Mayor's Business Policy Task Force" in 1986. This Task Force was established to "review the City of Edmonton policies believed to be critical to the competitiveness of this municipality in terms of its ability to support and enhance the establishment and growth of business and industry." The Task Force's recommendations as they affected the General Municipal Plan suggested "That City Council subject the General Municipal Plan to a thorough review and that it be rewritten to reflect more closely the Provincial Statutory requirements for this general level of planning." The Task Force indicated that the existing plan conveyed an overly rigid impression and its policies could not react to changing economic or market conditions.

In response to Council's acceptance of the need to review and rewrite the GMP, the Planning and Development Department prepared terms of reference for the project. The terms of reference stated that the new General Municipal Plan "should set out principles and guidelines from a strategic perspective." This is intended to accomplish a shift from the 1980 Plan approach of presenting a comprehensive vision of the future to an approach of keying in on those issues of greatest influence on the future. The new General Municipal Plan remains committed to a vision of Edmonton that serves all its citizens and provides a physical environment and social and economic climate which are assets to peoples' lives.

1980 General Municipal Plan The 1980 General Municipal Plan was drawn-up in a period of rapid growth and expectations of further growth.

The 18 point growth strategy recognized that the issue of significant growth was upper most in most people's minds. The Plan approached the growth issue with a comprehensive set of policies for the future and a long series of implementation activities to arrive at the desired goals. The Plan recognized the need at the time to translate many commonly held land use principles into a policy form to provide a regulatory method of managing and directing growth.

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1990 General Municipal Plan

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The 1990 Plan anticipates a situation much changed from that faced by the 1980 Plan. Edmonton's economy took a dramatic downturn in the 1980's and while a recovery is in evidence, the prospects for growth have been much reduced.

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This new GMP accepts the changes that have occurred in the 1980's and recognizes that the major issues facing Edmonton in the future cannot be resolved by growth alone. This GMP has as its major principle that Council must set out a strategic agenda for many of the issues within its current mandate of services.

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To this end, this 1990 Plan attempts to establish priorities for the major development issues facing Edmonton, to give them a context within which they can be understood and to establish an action plan for the City against which to test initiatives and proposals.

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The following criteria were used to identify issues of importance at the City wide level: • • • •

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

These criteria were then applied to a number of potential issues using current social economic forecasts to arrive at a manageable number of topics. A complete discussion of this process is included in the document entitled "Managing Urban Change in Edmonton."

Strategic Issues The strategic issues included in the 1990 Plan are: • • • • • • •

Inner City Areas Suburban Areas Business and Employment Areas Downtown Urban Design and Heritage Agriculture and the Natural Environment Transportation and Utilities

For the Inner City Area, the GMP recognizes that many inner city communities are facing a continued loss of population, an aging population, and, in some cases infrastructure problems and a concentration of socio-economic problems. Inner city neighbourhoods have a critical role to play in the overall health of Edmonton. No single set of answers exist to deal with the complex and inter-related problems facing these neighbourhoods. The Plan presents a series of initiatives designed to produce a flexible corporate focus affirming the City's commitment to solving these issues.

In the Suburban Areas, the GMP continues to recognize Edmonton's desire to maintain reasonable land prices through a competitive market. At the same time, the Plan recognizes that the form of suburban neighbourhoods and people's preferences are changing the requirements for servicing and neighbourhood forms.

In the Business and Employment Areas, the GMP recognizes that significant changes have occurred in the economy and that the shift to the service economy has significantly altered the character of industrial areas and retailing practices.

The GMP continues to recognize the value of a vital Downtown. Emphasis is given to those initiatives that are presently paying dividends in downtown revitalization efforts.

The Plan focuses on Urban Design and Heritage related initiatives to improve the appearance of the urban form and retain an historical context.

In the Agriculture and the Natural Environment section, the value of farm land and the natural environment is recognized. Agricultural areas are to be retained until it can be demonstrated that they are needed for urban purposes. The Plan proposes various actions to protect major natural features such as the North Saskatchewan River Valley and calls for a significant effort in identifying and protecting other sensitive sites.

In the Transportation and Utilities section, the value of an efficient infrastructure is recognized. The Plan also recognizes the importance of a careful integration of development, utilities and resource development.

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Corporate Commitment

This Plan continues, in a variety of policies, to respect and promote the planning principles included in the 1980 Plan. The Plan also responds to the changed environment within which Edmonton functions and recognizes that the issues being faced cannot be resolved by growth alone. This 1990 GMP encourages a corporate effort to organize the City's resources to deal with a set list of priorities. A good example of success in this area is the City's Capital Priority Plan. In this way, the General Municipal Plan reflects the continued maturing of Edmonton.

Efforts to deal with problems are no longer static statements of principles, but a realistic assessment of complex and inter-related issues that involve innovative corporate efforts to resolve.

PLAN FRAMEWORK Purpose: City Land Use Plan

This document is the General Municipal Plan (GMP) for the City of Edmonton. The GMP is prepared under the requirements of the Planning Act which states that plans "may be prepared and adopted to (a) achieve the orderly, economical and beneficial development and use of land and patterns of human settlement, and (b) maintain and improve the quality of the physical environment within which patterns of human settlement are situated in Alberta, without infringing on the rights of individuals except to the extent that is necessary for the greater public interest." (Section 2 - Alberta Planning Act) The purpose of this GMP is to identify strategic, city-wide land use planning issues and to address these issues by providing objectives, policies and a framework for action.

As the highest level document in the local planning hierarchy, this GMP focuses on the most important issues for future growth and development at the City-wide level. Therefore, the GMP deals with a limited number of topic areas, providing objectives and policies that have an impact on the entire City. The Plan does not attempt to address development issues in a comprehensive manner and it does not contain detailed regulatory elements.

Essentially, this Plan will establish the general framework for the physical development of the City in a manner which is flexible and facilitative and not prescriptive.

While the GMP provides the planning framework, various other plans and activities will implement GMP objectives and policies. The hierarchy of land use planning that will be utilized includes the preparation of development concept plans for large-scale, newly developing suhurban communities. For the planning of smaller areas, area structure plans will be prepared for suburban neighbourhoods and area redevelopment plans for inner city neighbourhoods, to provide policies for local community issues. As well, plans may be prepared for specific topical issues throughout the City.

Further details on the hierarchy of plans is provided in Section 8, Implementation.

Plan Goal

The goal of this Plan is: "To provide in Edmonton an attractive, safe, dynamic, accessible and sustainable environment in which people can live, work, move, visit, and play now and in the future."

Vision of Edmonton

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The vision of the physical aspects of the City arising from this goal statement

embodies these elements: a living environment which provides for a sense of human well being in strong, safe and attractive communities with distinctive characteristics both in revitalized inner city areas and in the expanding suburbs. a working environment which is functional, dynamic, and attractive, capable of enticing new economic activities. a vibrant, diverse, and people-oriented Downtown with high standards of urban design, a variety of character areas, and a range of functions. a need to protect high quality agricultural land and a natural environment which focuses on the unique attraction of the North Saskatchewan River Valley and Ravine System, protecting it and weaving it into the urban form.

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PLAN FRAMEWORK a city which demonstrates pride in itself by focussing attention on civic beautification, promoting high standards of urban design, and preserving heritage and special character areas.

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a safe and efficient roadway, walkway and transit system which provides links throughout the city, while protecting communities.

Growth Strategy

A growth strategy is required to realize the Plan Goal and Vision. The components and some highlights of the Growth Strategy follow, while Chart 1 relates the Vision to details of the Growth Strategy found in the Plan. Each component of the Growth Strategy is the basis for one chapter in the Plan.

Revitalizing the Inner City The City recognizes that selected inner city neighbourhoods are areas requiring top priority attention because of the diversity and severity of socioeconomic and physical problems facing them. The Plan proposes a strategy for dealing with them which involves a new, concerted, corporate commitment. However, other inner city areas present a series of issues which require varied solutions, ranging from maintenance to redevelopment, to ensure their attractiveness.

Managing Suburban Growth Suburban single family dwellings are likely to account for the large majority of total new housing starts in Edmonton over the Plan period. The Plan allows for these market forces, while pursuing the goal of heterogeneous

suburban communities and orderly, economical development. Flexibility in designing attractive and functional neighbourhoods is encouraged.

Providing Appropriate Commercial and Industrial Land Over the Plan period, employment growth is expected to be predominantly in the service and trade sectors, with proportionately less in the manufacturing sector, resulting in the need for the Plan to identify and provide for new types of commercial and industrial land uses. In the inner city, the Plan encourages the renewal of industrial areas and improvement of commercial strips, while maintaining compatibility with adjacent areas.

Strengthening the Downtown The Downtown is the multi-functional centre of the City and Region. The Plan outlines the policies and activities required to continue the revitalization and strengthening of the Downtown. Joint public/private partnerships are vital to implement these policies and activities.

Promoting Good Urban Design and Civic Beautification The aesthetics and visual impacts of growth and redevelopment are significant features in creating an image of Edmonton. The Plan proposes both public and private initiatives to improve the City's image. Preserving heritage buildings and areas is also important in contributing to the City's character.

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PLAN FRAMEWORK Protecting Agriculture and the Natural Environment The Plan encourages the preservation of agricultural land and the pursuit of agricultural activities on the large areas of good agricultural land within the City boundaries. The Plan also recognizes the role of environmentally sensitive areas, and particularly the North Saskatchewan River Valley and Ravine System, in contributing to an attractive community image, to public recreation opportunities and to protecting natural habitats.

Providing Efficient Transportation and Utility Systems The Plan recognizes the need for an efficient, safe transportation system which supports and is compatible with the City's socioeconomic and land use development needs. In addition, the Plan provides for the safe and functional integration of energy corridors and facilities into the urban environment.

Orderly development and provision of water, sewer and storm services meeting the long term needs of the public is an important component of the Plan.

Map 1 shows a generalized physical representation of the growth strategy.

This map is intended to be a conceptual illustration of the desired pattern for urban development and its boundaries are not meant to be specific.

Plan Format

The Plan is divided into seven sections reflecting the elements of the growth strategy: Inner City, Suburban Areas, Business and Employment Areas, Downtown, Urban Design and Heritage, Agriculture and the Natural Environment, and Transportation and Utilities. Each of these components is organized as follows: 1. Issue: A brief discussion of the matter to be resolved.

2. Objective: A statement of a particular aim to be achieved.

3. Policies: A statement of the general courses of action to achieve the objective.

The last component deals with the implementation of the Plan.

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• General Municipal Plan

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Chart 1 GROWTH STRATEGY HIGHLIGHTS

VISION

Inner City A living environment which provides for strong, safe and attractive communities with distinctive characteristics in a revitalized inner city.

- Renewing Special Needs Areas - Enhancing Inner City Communities - Ensuring Coordinated Civic Actions

Suburban Areas A living environment which provides for a mixture of housing types and well- designed neighbourhoods in the expanding suburbs.

- Managing Suburban Growth - Encouraging Adequate Neighbourhood Services - Maintaining a Balanced Mix and Density of Dwellings

Business and Employment Areas A working environment which is functional, dynamic, and attractive, capable of enticing new economic activities.

- Providing for New Types of Commercial and Industrial Land Uses - Encouraging Town Centres - Providing for Major Commercial Corridors - Reinforcing Established Commercial Strips - Renewing Older Industrial Areas - Recognizing Major Activity Centres

Downtown A vibrant, diverse, and people-oriented

- Revitalizing the Downtown

Downtown with high standards of urban design, a variety of character areas, and a

- Fostering Joint Partnerships

range of functions, attractive to residents and visitors alike.

- Promoting Housing in the Downtown - Improving the Downtown Environment

Urban Design and Heritage A city which demonstrates pride in itself by focussing attention on civic beautification, promoting high standards of urban design and preserving heritage and special character areas.

Promoting Good Urban Design and Civic Beautification Improving Roadway Approaches Preserving Heritage

Agriculture and the Natural Environment A need to protect agricultural land and a natural environment which focuses on the unique attraction of the North Saskatchewan River Valley and Ravine System, protecting it and weaving it into the urban form.

Designating Agricultural Land and Environmentally Sensitive Areas Protecting the Natural Environment of the North Saskatchewan River Valley and Ravine System Providing Recreational and Open Space Amenities in the River Valley and Ravine System Retaining and Obtaining Environmentally Sensitive or Unique Areas

Transportation and Utilities A safe and efficient transportation and utility system which serves the entire city, while safeguarding communities.

Supporting Development Utilizing the Transportation/Utility Corridor Integrating Energy Facilities into the Urban Environment

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MAP 1 GENERAL MUNICIPAL PLAN DEVELOPMENT CONCEPT This map represents a broad and conceptual illustration of the desired structure of urban development and is not intended to provide site specific direction to land use regulation.

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MAP (as amended, September 14, 1992)

DEVELOPMENT CONCEPT. This map represents a broad and conceptual Illustration of the desired structure of urban development and is not intended to provide site specific direction to land use regulation.

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SECTION ONE - INNER CITY STRATEGY Key Civic Commitments and Objectives

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Renew Special Needs Areas - Enhance Inner City Communities - Ensure Coordinated Civic Action A Summary of the Features of the Planning Approach • A. Renew Special Needs Areas

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1. There are a number of neighbourhoods which have significant levels of urban problems and special needs.

A high civic priority should be assigned to the provision and planning of city services to the special need inner city neighbourhoods.

2. The problems of the special need inner city neighbourhoods are interrelated and will require coordinated intervention at the social, economic and physical levels. Since the City has only a limited mandate and resources for the social and economic issues, other organizations, agencies and levels of government must be involved. A form of local neighbourhood improvement is necessary with the following types of strategies: • community organization and development; • employment and job training needs; • housing quality improvements; • • innovative infill housing and non-family oriented alternatives; • greater emphasis on local traffic management; • social housing initiatives; and • community physical improvements.

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 community commitment personally. In the planning process, innovative avenues should be explored for encouraging a strong commitment to improving the conditions of the neighbourhood. .

B. Enhance Inner City Communities 1. Civic efforts must 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. Strong demographic and market forces shaping suburbanization make such a reversal unrealistic.

Among the positive examples laying the foundation for renewal are the following: • the current infrastructure upgrading approach (based on the principle that all users pay, not just those in the inner city); • the Alberta Municipal Partnership in Local Employment program (AMPLE) currently under way; • the Residential Rehabilitation Assistance Program (RRAP); and • the Business Revitalization Zones for older strip shopping areas.

2. Following upon the need to make the inner city communities attractive, the following features are necessary: • ensuring the compatibility of new development with existing development, while encouraging variety in the types and densities of land uses; maintaining stable and attractive neighbourhoods, recognizing local residents' desires; • improving the living environment through housing stock rehabilitation; • encouraging the construction of new family type housing to mitigate population losses; and • providing for high density activities at sites with appropriate locational criteria.

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General Municipal Plan 6

3. A form of local neighbourhood improvement program would be an important coordinating mechanism for the various City activities.

C. Ensure Coordinated Civic Actions 1. The City of Edmonton is experiencing a number of infrastructure problems, particularly in older neighbourhoods. There is a need to replace cast iron water mains, to resolve problems with the combined sewer system and to resurface and maintain roads, overpasses and bridges. The situation is significant because of: • • •

the geographical extent across the inner city; the major financial implications; and the problems must be addressed to help encourage inner city revitalization.

2. There is a clear link between the goal of inner city revitalization and the need to have an efficient civic infrastructure. Commitment by the City to maintain and upgrade its facilities is essential to encourage individual and private sector investment 3. The special needs neighbourhoods and the infrastructure improvements needed in the inner city suggest that civic programs should have a neighbourhood focus.

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Section One Inner City

ISSUE:

OBJECTIVE

Renewing Edmonton's Inner 1.A. To renew the physical and socioeconomic environments, housing, City Neighbourhoods The renewal of selected neighbourhoods in the inner city is the top civic priority identified by the GMP. Population losses have been experienced since the early 1970's, contributing to inefficiency in the provision of public services, the threatened viability of schools and businesses, and a general reluctance to invest in these areas. Other issues include housing needing repairs, unemployment, low incomes, and community health and security concerns. Because these concerns are inter-related, they require coordinated action at both socioeconomic and physical levels. A high priority must be

infrastructure and community image in selected inner city residential neighbourhoods.

POLICIES 1.A.I.

Undertake the renewal of physical environment, housing, infrastructure and community image through a series of coordinated programs.

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Ensure all stages of the renewal process, including the selection of the neighbourhoods, be undertaken with the participation of the communities affected.

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Consider as priority areas for civic initiatives the special needs neighbourhoods identified on Map 2. The initiative may be expanded to other inner city neighbourhoods as required.

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Achieve new economic growth and employment opportunities by stimulating and attracting private investment, core area housing, neighbourhood mainstreet/business revitalization,

heritage preservation and small business promotion.

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which will improve the quality of 1.A.5. life and urban services. Because this is a significant new direction by the City, there is a need for a clear policy direction and I.A.6. commitment to action.

Ensure a coordinated approach by civic, community, private and other government agencies to allow for the most effective use of all available funding and manpower resources.

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Secure local political support for the initiative, and organize local business and community leaders and organizations; mobilize the technical, financial, and administrative resources required to undertake the initiative

Establish civic priorities on maintenance and upgrading programs for utility, recreation and transportation facilities to demonstrate civic commitment to renewal.

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MAP 2 SPECIAL NEEDS NEIGHBOURHOODS

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ISSUE:

OBJECTIVE

Enhancing Inner City Communities

1.B.

Inner city areas present contrasts which require a variety of approaches to achieve community enhancement. In some neighbourhoods, where there are underutilized or incompatible land uses, selective redevelopment may be required in order to achieve vitality. In other areas, where communities are presently stable and attractive, preservation of these characteristics is essential.

Throughout the inner city, the compatibility of new development with existing will remain crucial to the success of renewal and revitalization efforts.

POLICIES

To maintain, renew, or revitalize, as appropriate, the inner city communities.

1.B.1.

Maintain stable, secure and attractive inner city communities which recognize residents' aspirations.

1.B.2.

Encourage variety in the types and densities of land uses in the inner city subject to the compatible integration of new development with existing development.

1.B.3.

Encourage the rehabilitation of housing to maintain a good quality of housing stock.

1.B.4.

Encourage selective redevelopment and sensitive infilling to increase the amount of housing, especially family housing, in the inner city.

1.B.5.

Encourage the development and appropriate integration of high density commercial and/or residential nodes at sites with appropriate locational characteristics including proximity to major activity centres, regional shopping centres, LRT stations and arterial road access.

1.B.6.

Ensure the availability of appropriate land for social housing in

accordance with Council Policy in residential neighbourhoods in the inner city.

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ISSUE:

OBJECTIVE

Ensuring Coordinated Civic 1.C. Actions A coordinated civic approach is essential to the ongoing enhancement of the inner city.

The City, through its infrastructure renewal and provision of community services, can play a significant role in revitalization. As well, some of the City's approved area redevelopment plans must be revised because of the need to resolve new issues. Finally, an ongoing neighbourhood planning approach must be an important component of inner city revitalization.

To meet the needs of the inner city through the provision of civic infrastructure and services.

POLICIES 1.C.I.

Maintain and renew, where appropriate, urban infrastructure and community facilities to demonstrate civic commitment to improving the quality of the community environment in the inner city.

1.C.2.

Establish and coordinate short and long term goals for civic improvements in the inner city.

1.C.3.

Examine the feasibility of using development initiatives to encourage development in the inner-city, and implement such initiatives where appropriate.

I.C.4.

Budget and monitor program expenditures in the inner city using neighbourhoods as the basic planning unit to assess the effectiveness of civic expenditures.

1.C.5.

Assess the currently approved area redevelopment plans and revise, as necessary, in order to ensure that they address neighbourhood concerns, including possible displacement of existing residents and other consequences of improvements to adjacent areas, giving priority to the plans in the special needs areas.

1.C.6.

Coordinate the provision of municipal services with local plans and community requirements in the inner city.

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General Municipal Plar. I I

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SECTION TWO - SUBURBAN AREAS Key Civic Commitments and Objectives

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Manage Suburban Growth Ensure Adequate Neighbourhood Services Maintain a Balanced Mix and Density of Dwellings A Summary of the Features of the Planning Approach

A. Manage Suburban Growth Differences in growth rates among the suburban sectors can be expected to continue. The west and southwest sectors, which have generally similar housing market characteristics, will receive the majority of the new housing construction. However, Civic efforts are necessary to resolve general growth limitations in northeast Edmonton. The servicing of new residential areas must recognize the protection of the natural topography and environmental features. 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.

B.

Although studies have indicated that there need not be an additional cost to the municipality for non-contiguous development, care must be taken to ensure that the level of service and the time required to built out an area is reasonable. The neighbourhood unit remains the best unit upon which to design this balance. In order to work, the neighbourhood design must be flexible in terms of size and population and must recognize changes in services such as schools.

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Ensure Adequate Neighbourhood Services

C.

Maintain a Balanced Mix and Density of Dwellings The goal of encouraging balanced and heterogeneous communities remains desirable 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 that 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 multi-family sites to be postponed.

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

Piardng ^aid Dc,v3lopment

1S3RARY c/,' Edmonton

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General Municipal Plan - 12

Section Two Suburban Areas

ISSUE:

OBJECTIVE

Managing Suburban Growth

2.A.

Within approved area structure plans and outline plans or areas authorized by Council for the preparation of development concept plans, the City will encourage contiguous development, while simultaneously accommodating the need to respond to market demands for alternative housing choice and location. Beyond these areas, the City will encourage the retention of agricultural land since there is sufficient land for anticipated urban development over the timeframe of this GMP.

POLICIES

To accommodate growth, serviced in an orderly and economic fashion, in all suburban areas of the city.

2.A.1

Encourage new development to be contiguous with existing development.

2.A.2.

Allow the location of new suburban residential development to be guided by the demands of the housing market for choices in housing types and location and the availability of municipal services.

2.A.3.

Ensure the orderly and efficient extension of municipal services and discourage the inappropriate use of temporary services.

2.A.4.

Allow market forces to determine the timing, location and extent of servicing in newly developing areas, but require a developer to pay for all on-site services, and where appropriate, specific off-site services.

The City will work with the development industry towards the delivery of neighbourhoods 2.A.5. meeting the needs of the public in terms of municipal services, amenities and overall quality of life within a reasonable period of time.

In the medium term, new 2.A.6. residential growth in northeast Edmonton (as shown on Map 3) is expected to be modest. The reasons are numerous, but 2.A.7. include the need for expensive new drainage facilities, relatively high on-site/off-site servicing charges for existing 2.A.8. water and drainage facilities and developer intentions. Northeast Edmonton has several positive factors for community

Ensure that the preparation of Area Structure Plans or development concept plans is not undertaken in areas designated for agricultural use until the proponent can demonstrate such lands are needed for orderly and economic urban expansion.

Ensure the use and protection of the natural topography and unique elements of the natural environment in the design and servicing of new suburban development.

Encourage development proposals which lead toward the completion of neighbourhoods and meet the service and amenity needs of residents within a reasonable timeframe.

Prepare and implement, as required, a strategy which resolves the development constraints in northeast Edmonton to allow urban development to proceed in an orderly manner.

development including the availability of LRT and other

transportation and community facilities. Action is needed to resolve the development limitations so growth can occur.

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MAP 3 NORTH EAST EDMONTON

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General Municipal Plan - 14

ISSUE:

OBJECTIVE

Ensuring Adequate Neighbourhood Services

2.B.

In the past, the neighbourhood, focused on a school/park site, was the basic unit for suburban residential planning and development. However, in some neighbourhoods the population has not yet grown large enough to support a school and the school site remains vacant. In other instances, there is sufficient population, but the school boards have not built new schools because of financial constraints or because nearby schools have excess capacity. There is a need to accommodate flexibility in the provision of school sites in each neighbourhood, while ensuring access to adequate municipal and commercial services.

POLICIES

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Encourage flexibility in creating attractive and functional neighbourhoods.

2.B.1.

Provide planned, integrated neighbourhoods as the basis for new suburban residential developments, accommodating flexibility in neighbourhood size, population and geographic extent, and recognizing the need for municipal services and transportation facilities to be efficiently supplied.

2.B.2.

Ensure neighbourhoods have adequate and timely access to neighbourhood level services including municipal services, parks and commercial facilities while recognizing that a school may not have to be provided in each neighbourhood.

2.B.3.

Allow flexibility in the type of central focus for each neighbourhood using a range of community and private facilities to serve the residents' needs.

2.B.4.

Promote linkages between communities through the design and location of open spaces, community facilities and activity centres.

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Maintaining a Balanced Mix 2.C. and Density of Dwellings A variety of housing types and densities should be included in new suburban development so that a choice of housing is available throughout the city.

However, at present the market demand is for low density, single family housing and changes are being requested in the land use districting of multi-family sites to allow single family housing.

The City will continue to provide for well-planned heterogeneous neighbourhoods, while recognizing the need to adapt to changing market conditions.

To provide a range of housing types and density opportunities in each residential neighbourhood.

POLICIES 2.C.1.

Encourage heterogeneous communities by planning for a variety of housing types, including multi-family, in each residential neighbourhood.

2.C.2.

Encourage ground related multi-family sites to be designed as an integral part of each neighbourhood on small blocks of land. .

2.C.3.

Utilize detailed design guidelines in neighbourhood area structure plans for large concentrations of medium and high density multi-family development.

2.C.4.

Encourage the redistricting of vacant land within substantially completed neighbourhoods, where such changes would hasten the completion of a neighbourhood and would be compatible with the existing land uses, and where such departures from mixed density opportunities will not preclude the long term support of municipal and educational infrastructure.

2.C.5.

Ensure, where the need has been established, adequate land is

acquired by the City in new and developed neighbourhoods for social housing.

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General Municipal Plan -

• SECTION THREE - BUSINESS AND EMPLOYMENT AREAS

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Key Civic Commitments and Objectives Provide for New Types of Commercial and Industrial Land Uses Encourage Town Centres Provide for Major Commercial Corridors Reinforce Established Commercial Strips Renew Older Industrial Areas Recognize Major Activity/Centres

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A Summary of the Features of the Planning Approach A.

Provide for New Types of Commercial and Industrial Land Uses 1.

Employment growth is continuing Edmonton toward 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: • • • • • • •

B.

explicit recognition of the importance of services and trade in "industrial" areas; removal of the present bias protecting industrial land availability, and redesignating some industrial lands for other uses; incorporation of policies to ensure adequate supplies of land for service and trade uses; locational criteria for service and trade use which recognize their demand for sites with high visibility and good vehicle access; new design principles for industrial Area Structure Plans 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) with suitable location requirements, essentially for heavy industrial activities.

Encourage Town Centres 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.

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town centres are long term developments whose components develop independently in response

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to separate market conditions. The time elapsed since the concept was adopted is too short to pronounce judgments on its ultimate success or failure. town centres are presently functioning without all of the anticipated components.

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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 is inadequate to deal with the different situations that now exist. Consequently, revised policies should recognize the difference (size, role, function, timing) among the town centres.

3.

The development of the town centres has been slowed by the major commercial corridors. 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 major commercial corridors.

Municipal Plan 17

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Provide for Major Commercial Corridors 1.

The major commercial 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 are new land use forms requiring specific land use objectives, policies and development standards.

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The time involved to reach a built-out state along the corridors 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.

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As a result of the ongoing growth of the corridors, the draining away of uses from the town centres will continue, contributing to their slow growth. Restricting the growth of the corridors is not likely to be successful given their significant locational advantages.

4.

The megastrips are influenced by the arterial roadway system. Improvements to the arterials will intensify the corridors, while arterial extensions could lead to the creation of new longer corridors.

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

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

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Reinforce Established Commercial Strips

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Older Commercial Strips suffer from physical constraints like a lack of convenient parking and market

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constraints such as the continued reduction in populations immediately surrounding them. Success in

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examples such as Whyte Avenue demonstrates the need for older strips to develop an identity and seek a market larger than those originally served by strips.

E.

Older Industrial Areas located in large part within the Inner City have traditionally been found adjacent to transportation facilities such as railways. These areas often began as heavy industrial activities and provided employment to people residing in the surrounding areas.

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Renew Older Industrial Areas

Industrial functions have changed, transportation provisions have changed and the need to live near employment has changed. However, these areas continue to provide services to the surrounding area. They also continue to provide employment. Minor municipal improvements could significantly improve the environment of these areas.

F.

Recognize Major Activity Centres Major Activity Centres are defined as those facilities which have a city-wide or regional function such as the Downtown and University. Many of these facilities are critical components in Edmonton's function as Provincial Capital and Regional Centre. As these centres expand or intensify, land use, transportation and infrastructural impacts must be dealt with and involve community inputs.

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General Nillinicipal Plan 18

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Section Three Business and Employment Areas

ISSUE:

OBJECTIVE

Providing For New Types of 3.A. Commercial and Industrial Land Uses

To provide business and employment areas which accommodate the emergence of a trade and service economy.

POLICIES

Demands for new types of industrial and commercial land are emerging. Edmonton's employment is expected to increasingly become in concentrated service - producing, as opposed to goods - producing sectors.

Industrial employment or goods - producing activity will not grow proportionately. These trends are resulting in changes to the existing industrial and commercial structure. There is a need for policies which encourage trade and service growth. These policies will help reduce the very large current supply of vacant industrial land. Land that is retained for traditional industrial uses must be located such that it is compatible with surrounding land uses and provides an adequate supply.

3.A•1.

Identify and utilize appropriate land use districting which allows for a variety of land uses in business and employment areas including manufacturing, commercial, and service uses.

3.A.2.

Identify and designate adequate lands required for existing and future industrial needs based on proximity to similar uses; compatibility with adjacent areas; appropriate road and rail access; adequate separation distances in the case of heavy industrial types of uses and the need for flexibility to accommodate future industrial employment growth.

3.A.3.

Require that adequate separation distances be maintained between heavy industrial uses and incompatible land uses such as residential and institutional uses, taking into consideration impacts including but not limited to noise, smoke, odour, dust, fumes, glare, humidity or hazards arising from fire, explosion, radiation or contamination. Consider the impacts on other land uses both within the City boundaries and in cases where the proposed use is near Edmonton's boundaries, within neighbouring municipalities.

3.A.4.

Policies are needed for retail facilities to accommodate new commercial forms.

3.A.5.

3.A.6.

Development located between heavy industry and incompatible land uses should be transitional from heavy to light to non-industrial uses. Define appropriate transition areas around heavy industries.

Encourage a hierarchy of shopping centres of varying sizes and functions ranging from the larger regional centres to community centres to the smaller neighbourhood centres to serve suburban residential areas.

Recognize the likelihood that several old, obsolete shopping centres in the inner-city may be subject to redevelopment proposals. Assess such proposals based. on factors such as compatibility with adjacent residential community areas, appropriate transportation and utility facilities and the opportunities to create innovative mixed-use facilities.

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• • • • 111 General Municipal Plan 19

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OBJECTIVE

Encouraging Town Centres

3.B.

To promote the development of town centres in the suburbs.

The planned multi-functional POLICIES town centres have not developed as anticipated in terms of their 3.B.1.

Encourage the development of multi-use town centres as focal distribution, size, or functions. points in suburban areas, while recognizing that future town However, town centres should be centre locations need not be established at the geographic centre seen as long term projects whose of an area and will have differences in size, function and components develop build-out times among various centres. independently in response to market conditions over a period 3.B.2.

Encourage the development of town centres based on the of time. Town centres are following considerations: an appropriate mix and site integration therefore not likely to develop in of activities; orderly phasing of development; compatibility with a uniform fashion. Policies for surrounding existing and future activities and adequacy of road town centres must allow and transit facilities. flexibility regarding size, functions, and phasing in order to 3.B.3.

Encourage the prompt development of the Clareview town centre facilitate their development, and and, where feasible, locate appropriate civic facilities on this site. therefore each town centre must be dealt with as an integral part of its community and addressed in a community plan.

The Clareview town centre should be considered as the first

priority for encouragement to develop. Mill Woods, Heritage and West Edmonton have been under development for several years, while the Lake District and Ellerslie town centres should be considered for long term development. A start on the Clareview town centre would provide an important component to the successful implementation of the Northeast strategy discussed in Section 2.

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General Municipal Plan • 20

ISSUE:

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OBJECTIVE

Providing for Major 3.C. Commercial Corridors

To provide for the orderly development of major commercial corridors along arterial roadways.

Over the past few years, a new POLICIES form of commercial development has emerged. These major 3.C.1.

Provide for major retail concentrations with one or more commercial corridors are defined large-scale retail facilities which develop along arterial corridors as large-scale retail concentrations with one or more large-scale retail facilities, 3.C.2.

Identify corridors and provide specific land use policies and land developing along arterial use districts for each corridor recognizing their unique corridors. At present, there are development characteristics including: variety of uses, regional no comprehensive development function, likely expansion, lengthy phasing of development, the policies dealing with these need for compatibility with adjacent uses and the desire for corridors. New policies are attractive urban design along arterial roads. needed to accommodate these corridors and guide their expansion and milling.

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Geni-ra! Municipal Plan 21

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ISSUE:

OBJECTIVE

Reinforcing Established Commercial Strips

3.D.

There are a number of older commercial strips throughout the City which serve a local neighbourhood market or provide specialized commercial outlets.

Because these strips have an important economic function, their enhancement should be promoted. However, redevelopment as well as current activities can have negative impacts on adjacent neighbourhoods. Therefore, the maintenance and improvement of local commercial strips must be permitted, while mitigating negative impacts on adjacent neighbourhoods.

POLICIES

To maintain and improve older retail strips while mitigating negative impacts on adjacent neighbourhoods.

3.D.1.

Encourage the revitalization of older, inner city strips.

3.D.2.

Encourage the development of the retail strips as character areas, having their own distinctive and unique blend of services, facilities and urban design.

3.D.3.

Participate with local businessmen and affected communities to encourage physical renewal and promotion for the older commercial strips.

3.D.4.

Protect neighbourhoods from the negative impacts associated

with retail strips and reisolve land use conflicts, parking problems and traffic circulation issues.

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General Municipal Plan • 22

ISSUE:

OBJECTIVE

Renewing Older Industrial 3.E. Areas

To encourage the renewal of older industrial areas while ensuring compatibility with surrounding land uses.

There are pockets of older POLICIES industrial areas within the inner city where land use changes or 3.E.1.

Encourage activities which retain existing employment or create the intensification of use of new employment in the inner city. underutilized land or buildings may occur. There are also other 3.E.2.

Encourage the development, or redevelopment, of underutilized areas where the existing land or buildings which is compatible with adjacent manufacturing activity is communities. expected to continue. In both cases, policies are necessary to 3.E.3.

Identify suitable implementation measures that the City can use mitigate impacts on surrounding to facilitate the early renewal of these areas. areas.

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General Municipal Plan - 23

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ISSUE:

OBJECTIVE

Recognizing Major Activity 3.F. Centres

To recognize the importance of major activity centres in the structure of the City while using local plans to resolve the special community concerns they present.

There are a number of major activity centres which play an POLICIES important role in the functioning of the City including the 3.F.1.

Recognize the likelihood of future proposals for the Downtown, the University of use intensification of activity centres and the development of the of Alberta/University Hospital, potential activity centres as shown on Map 4.

West Edmonton Mall, the Northlands/Coliseum/ 3.F.2.

Resolve the issues and problems generated by major activity Commonwealth Stadium centres through the preparation of local plans and/or complexes, and the Municipal development projects and the provision of adequate municipal Airport/the Northern Alberta services,while ensuring that the intensification or development Institution of Technology/ of activity centres is made compatible with adjacent land uses.

Kingsway Mall areas. If developed, the University Farm and the Downtown railway lands could become other major centres.

The key feature among these centres is their unique relationship with surrounding areas. Each has special

characteristics which pose different issues for the adjacent communities in its current, and

particularly its potential future, operation. The GMP must recognize the importance of the centres, but also provide that the local concerns they generate are resolved through local plans.

General 14 , inicipal Plan • 24

MAP 4 ACTIVITY CENTRES

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EXISTING `.4.:,`

1. DOWNTOWN / CN YARD 2. UNIVERSITY OF ALBERTA 3. WEST EDMONTON MALL 4. NORTHLANDS / COLISEUM / COMMONWEALTH STADIUM 5. MUNICIPAL AIRPORT! NAIT / KINGSWAY GARDEN MALL

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SECTION FOUR - DOWNTOWN Key Civic Commitments and Objectives - Revitalize the Downtown - Foster Joint Partnerships - Promote Housing in the Downtown - Improve the Downtown Environment A Summary of the Features of the Planning Approach A. Revitalize the Downtown The Downtown should receive priority in the development of major commercial facilities, office buildings, administrative quarters, large hotels, major cultural facilities 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.

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.

A consistent effort of revitalization and continual improvement is required to ensure that the Downtown

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remains a strong component of the City's tax base.

B. Foster Joint Partnerships The ongoing PRIDE program and its important principles of cooperation and communication between partners should be supported. Efforts should be made to encourage more federal/provincial participation to broaden PRIDE. Special events, sales promotions, parking improvements and beautification, capital improvement projects and additional cultural 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.

C. Promote Housing in the Downtown The development of substantial quantities of 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.

D. Improve the Downtown Environment

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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.

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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.

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General Municipal Plan - 26

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Section Four Downtown

ISSUE:

OBJECTIVE

Revitalizing the Downtown

4.A.

To strengthen and enrich the Downtown and maintain its importance as Edmonton's centre.

The central features of a strong downtown are diversity, POLICIES intensity and linkage among uses, with these features needing 4.A.1.

Promote the development of a vibrant and diverse Downtown, while maintaining its importance as the dominant and most continual renewal and revitalization to create an intensive commercial, administrative, entertainment and attractive and vibrant downtown cultural centre of the City. area. A balance of all three features is essential to maintain 4.A.2.

Give priority to the Downtown in the development of major and strengthen Downtown commercial, residential, office, hotel, cultural, entertainment, Edmonton as the social, economic and educational facilities. and cultural centre of the City and the surrounding region.

4.A.3.

Maintain existing municipal offices in the Downtown and return to the Downtown those municipal offices which need not be decentralized.

4.A.4.

4.A.5.

Continue to encourage the Federal and Provincial Governments to maintain the Downtown as the focus of government activity by maintaining their existing and future office space requirements in the Downtown.

Utilize, where appropriate, municipal office space leasing to

encourage redevelopment/ revitalization of office space in the Downtown.

4.A.6.

Provide and support facilities and events that will attract both visitors and residents to the Downtown on a year round basis.

4.A.7.

Encourage the development of the LRT system to improve downtown accessibility and support downtown redevelopment.

4.A.8.

Promote the ongoing development of a downtown parking program to encourage the use of Downtown's facilities.

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General Municipal Plan

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ISSUE:

OBJECTIVE

Fostering Joint Partnerships

4.B.

To foster the use of public/private partnerships in revitalizing the Downtown.

Joint public/private partnerships are vital to ensure the POLICIES implementation of programs and strategies aimed at 4.B.1.

Support the continuation and formation of joint partnerships strengthening the Downtown aimed at a comprehensive management and development Edmonton. Over the last few approach to the revitalization and strengthening of the years, PRIDE (Program to Downtown.

Improve Downtown Edmonton), one such partnership, and the 4.B.2.

Ensure the participation of the existing community in the participation of both the planning and implementation of revitalization efforts.

Downtown Development Corporation and Downtown Business Association, have been instrumental in revitalization efforts such as physical improvements to Jasper Avenue, Rice Howard Way, the Heritage Trail and a new downtown parking scheme.

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ISSUE:

OBJECTIVE

Promoting Housing in the 4.C. Downtown

To develop housing in and near the Downtown as an essential element in achieving a diverse Downtown.

More housing in the Downtown is POLICIES needed to expand and enrich its role. A number of activities are 4.C.1.

Initiate a Downtown housing strategy to identify and facilitate required in order to deal with the land availability, encourage development and establish a constraints associated with partnership mechanism to construct more housing in and near building housing in the the Downtown.

Downtown, including the cost and availability of land and the 4.C.2.

Utilize City land holdings to encourage the construction of provision of appropriate housing in and near the Downtown through the sale or leasing of infrastructure services. land.

4.C.3.

Protect existing residential areas from major intrusions of incompatible development in and near the Downtown.

4.C.4.

Review the Downtown Area Redevelopment Plan and area redevelopment plans adjacent to the Downtown to identify policy changes to expand the housing stock.

4.C.5.

Continue to apply incentives in the system of development controls to encourage mixed-use developments that include housing as a substantial component for areas in and near the Downtown.

4.C.8.

Undertake environmental improvements, where necessary, to areas designated for housing in and near the Downtown.

4.C.7.

Work with provincial and other agencies to ensure that accommodation is available for a broad range of income levels and households in and near the Downtown.

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General Municipal PI Lin

ISSUE:

OBJECTIVE

Improving the Downtown 4.D. Environment Physical appearance can play a major role in the image and perception of the Downtown. For this reason, over the last few years, the City has made extensive downtown streetscape improvements. Further improvements will be made through the implementation of design guidelines for the Downtown and other projects involving the participation of both the public and private sectors.

To achieve a high standard of urban design and linkage in the Downtown.

POLICIES 4.D.1.

Undertake civic beautification for key public areas of the Downtown in concert with the business community and other levels of government.

4.D.2.

Utilize a downtown design manual as a guide to promote high quality urban design for public and private developments.

4.D.3.

Improve visual and physical access to the River Valley from the Downtown through various facility improvements and site planning considerations for new projects.

4.D.4.

Encourage pedestrian travel within the downtown through the continuing development of the pedestrian circulation system.

This system should provide a balanced choice of well-lit, well-designed and maintained pedestrian facilities to maximize convenience of movement and ease of access for pedestrians.

4.D.5.

Promote the development of a downtown pedway network as part of a balanced pedestrian circulation system that provides a safe, convenient, weather protected alternative for pedestrian movement between activity areas.

4.D.6.

Work with the Provincial Government to enhance Edmonton's role as the Capital City of Alberta.

4.D.7.

Promote landscaping designs on both private and public lands which increase the attractiveness of the Downtown, provide park space and help define the various linkages within the Downtown.

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General Municipal Plan

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SECTION FIVE - URBAN DESIGN AND HERITAGE Key Civic Commitments and Objectives - Promote Good Urban Design and Civic Beautification - Beautify Roadway Approaches - Preserve Heritage - Meeting the Needs of all Citizens A. Promote Good Urban Design and Civic Beautification The Plan sets general principals and direction for local area plans and the Land Use Bylaw. Key elements of this direction are the recognition of the need for improvements on gateway entrances, special areas, heritage and cultural buildings and areas. Initiatives will include beautification programs.

B. Beautify Roadway Approaches Roadway approaches function not only as a city's front door but also as locations attracting a variety of commercial activities. The maximum benefit from both features may be aided by a program to improve the physical appearance of these approaches.

C. Preserve Heritage A heritage preservation program that addresses the issue of development incentives for the conservation of buildings of architectural or historical significance identified by a Register of Heritage Buildings is needed.

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.

D. Meeting the Needs of all Citizens The Plan recognizes that citizens have a diversity and variety of needs and that these variations must be taken into account in the development of policies, programs and facilities.

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General Munie . pa: Plan

32

Section Five Urban Design and Heritage

ISSUE:

OBJECTIVE

To beautify the City of Edmonton.

Promoting Good Urban 5.A. Design and Civic Beautification POLICIES Over the last few years, there has been increasing concern with providing a positive image of the City. Attention needs to be focused on urban design elements such as building form and mass, open spaces, landscaping, and streetscapes, which contribute towards making Edmonton an attractive urban centre. As well, Edmonton's natural setting, climate, topography and vegetation provide unique opportunities. Planning, designing and construction should utilize and enhance such environmental features as part of civic beautification.

5.A•1•

Undertake public and encourage private activities for maintenance, clean-up and enhancement to stimulate beautification efforts in the developed parts of Edmonton.

5.A.2.

Encourage the provision of amenities or design features which create a high quality of urban design and landscaping in the newly developing areas.

5.A.3.

Prepare and utilize guidelines to promote a high quality of urban design and landscaping through the entire City.

5.A.4

Encourage the identification, appreciation and incorporation of the natural environment in the development process.

5.A.5

Encourage the consideration of Edmonton as a "Winter City" in planning, design and construction.

5.A.6.

Utilize the concept of a "Healthy Community" in the implementation of design guidelines.

The City shares a responsibility with other levels of government 5.A.7. and the private sector to promote the wise use of energy resources in land use planning and 5.A.8. building activities.

Establish and utilize a program for the provision of art in public places.

Promote energy efficient design and innovation in building and community planning.

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ISSUE: Improving Approaches

OBJECTIVE Roadway 5.B.

To improve the City's image through the enhancement of roadway approaches into the City and the Downtown.

One of the key ways in which a POLICY city projects its image is through roadway approaches. Urban 5.B.I. Identify and beautify the roadway approaches into the City and design criteria needs to be into the Downtown through both public and private activities. applied to both city-wide and Downtown entrances in order to make them more attractive.

General Municipal Plan - 34

ISSUE:

OBJECTIVE

Preserving Heritage

5.C.

To preserve buildings, sites, and areas which have special character, cultural or historical significance.

Many buildings and areas contribute to the uniqueness and POLICIES variety of the City because of their special character, cultural, 5.C.1.

Utilize and update the inventory of heritage buildings. or historical nature. The preservation of these buildings 5.C.2.

Establish a program of incentives to preserve designated and/or areas requires the historical and/or architecturally significant buildings and areas. development and application of special design criteria and 5.C.3.

Establish design guidelines for the renovation of historical incentives. and/or architecturally significant buildings.

5.C.4.

Identify and promote areas of special character, historical, or cultural significance.

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General Municipal Plan - 35

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ISSUE:

OBJECTIVE

Meeting the Needs of All Citizens

5.D.

To ensure that the City's provision of services and the implementation of regulations for the physical environment considers the needs of all citizens.

Citizens have a variety of needs and capabilities which should be POLICIES considered in the delivery of Identify opportunities and undertake activities which ensure services and the implementation 5.D.1. that the needs of special groups are considered and incorporated, of regulations in matters related where possible, in matters affecting land use and physical to the physical environment. A development of the City. particular concern is the needs of disabled persons and other Participate with other levels of government and local agencies in groups with special 5.D.2. the ongoing development and implementation of land use and requirements. These needs environmental improvements as they affect citizens with special should be considered in the needs. physical development of the City.

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General Municio,1 Plan - 3r;

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SECTION SIX - AGRICULTURE AND THE NATURAL ENVIRONMENT Key Civic Commitments and Objectives Designate Agricultural Areas Protect the Natural Environment of the North Saskatchewan River Valley and Ravine System Provide Recreational and Open Space Amenities in the River Valley Retain Environmentally Sensitive Areas A. Designate Agricultural Areas Agricultural land cannot be easily reclaimed and must be preserved as long as possible. There is no need for 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 policy approvals: •

primary and secondary agricultural land management should not be developed until they are essential for orderly and economical development;

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these agricultural areas should be clearly designated for agricultural use.

Most of the activities outlined in the City's 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 at this time.

B. Protect the Natural Environment of the North Saskatchewan River Valley and Ravine System The goals of the North Saskatchewan River Valley Area Redevelopment Plan have been confirmed. As well, the need for 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 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.

C. Provide Recreational and Open Space Amenities in the River Valley The North Saskatchewan River Valley is the most significant geographic feature in Edmonton. As such, it offers a wide variety of recreational and open space opportunities. Efforts must be directed at successfully integrating such activities into the protected environment of the valley and extending the Capital City Park system such that facilities are interconnected.

D. Retain Environmentally Sensitive Areas

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A variety of natural areas exist within Edmonton which provide a wildlife habitat, visual relief and help in meeting recreational needs. Over 1,000 discrete natural sites exist.

The Plan recognizes the existence of natural areas and their importance within the urban setting. The intention is to establish detailed guidelines and to use these to prepare environmental impact statements for newly developing area.

General Municipal Plan. 37

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Section Six Agriculture and the Natural Environment

ISSUE:

OBJECTIVE

Designating Agricultural 6.A. Areas

To preserve agricultural land management areas for agricultural use until required for urban development.

The retention of good agricultural land is a critical POLICIES environmental issue. The majority of lands within 6.A•1• Allow in agricultural areas those activities related to Edmonton are within the highest agricultural production and processing, and limit capability classes for agricultural non-agricultural land uses. Exceptions may be permitted: production, with areas in the northeast and southwest a) when no alternative location is reasonably available; particularly suited for market b) the minimum land area required for development is used; gardening. However, if the City and was to limit growth on lands with c) measures are taken to minimize conflicts with agriculture. high agricultural capability, it would be essentially in a no 6.A.2.

Maintain land in the agricultural designation, especially those growth situation beyond the lands of high agricultural capability identified as primary currently approved plan areas. agricultural land management areas on Map 6, until a proponent An approach is needed which can demonstrate that such land is essential for orderly and balances agricultural land economical urban development and/or essential public services. preservation with urban requirements. Consequently, the 6.A.3.

Identify, and utilize appropriate measures to encourage ongoing

City needs to prevent the

agriculture.

premature loss of agricultural

land and ensure that 6.A.4. urbanization occurs only when it is essential for City growth.

6.A.5.

Current projections indicate that agricultural areas will not be required for urban purposes prior to 1993; indeed, none will likely be needed within the longer term period of 15 to 20 years.

Consequently, the areas shown on Map 1 should be designated for agricultural activities. In addition to the designation, measures are required to promote productive farming.

Discourage the fragmentation of agricultural land until the land is required for urban development.

Work with the Provincial Government and the farm community regarding the extension of leases on Provincially-owned land so that leases reflect agricultural growth and investment cycles and encourage long term agricultural uses.

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General Municipal Plan • 18.

MAP 6 AGRICULTURAL LAND MANAGEMENT

PRIMARY AGRICULTURAL LAND MANAGEMENT AREAS

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General Municipal Plan - 39

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ISSUE:

OBJECTIVE

To protect the natural environment of the River Valley and Protecting the Natural 6.B. Ravine System.

Environment of the North Saskatchewan River Valley POLICIES and Ravine System Protect and enhance the natural environment and character of 6.B.1.

The North Saskatchewan River the River Valley and Ravine System as shown on Map 7.

Valley and Ravine System, the most striking physical feature in 6.B.2.

Require environmental impact assessments for proposals the City, is a valuable natural affecting natural hazard or sensitive areas. resource, and the River is the City's sole source of drinking 6.B.3.

Ensure that development within the City of Edmonton water. The River Valley is boundaries is consistent with the protection of the North environmentally very sensitive Saskatchewan River as Edmonton's and other downstream users' and requires protection to remain source of drinking water. a treasured physical asset of Edmonton. There are land uses Participate with other municipalities and the Province to ensure in the River Valley which can be that developments outside Edmonton's boundaries are consistent allowed only if the integrity of with protecting the North Saskatchewan River as Edmonton's the natural environment is sole source of drinking water. preserved.

6.B.5.

Limit the expansion of transportation and utility facilities in accordance with the North Saskatchewan River Valley Area Redevelopment Plan and other appropriate area redevelopment

plans.

6.B.6.

Permit limited residential development in the central area of the North Saskatchewan River Valley and Ravine System in accordance with the North Saskatchewan River Valley Area Redevelopment Plan and other appropriate area redevelopment plans.

6.B.7.

Provide and enhance linkages between Downtown and River Valley communities.

6.B.8.

Ensure that any development adjacent to Big Lake considers the guidelines and principles established in the Big Lake Plan adopted as a guideline by Council on April 11, 1989.

General Municipal Plan

41)

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ISSUE:

OBJECTIVE

Providing Recreational and 6.C. Open Space Amenities in the River Valley

To provide a variety of recreation and open space opportunities within the River Valley and Ravine System.

POLICIES

The River Valley offers significant potential for a 6.C.1. continuous recreation and open space system in the City. The Capital City Recreation Park has 6.C.2. been developed to provide amenity space in the central part of the City and plans provide for its extension.

Pursue plans and development of various open space and recreational amenities in the River Valley and Ravine System.

Extend the Capital City Recreation Park within the existing River Valley Park System.

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General Municipal Plan

42

111

ISSUE:

•

OBJECTIVE 6.D.

Retaining Environmentally Sensitive Areas

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To retain and obtain environmentally sensitive areas.

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POLICIES

Many environmentally sensitive 6.D.1. sites exist in Edmonton. There is still an opportunity to incorporate these sites into the design of new development, thus mitigating negative impacts 6.D.2. upon these sites from development and, in some cases, retaining these sites in their 6.D.3. natural state. As well, guidelines for environmental impact assessments are necessary to protect environmentally sensitive areas.

Prepare an environmentally sensitive area study for the City to identify locally and regionally significant environmentally sensitive areas, classify such areas as to their importance and identify which areas should be protected.

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Establish a process for undertaking impact assessments for proposals affecting environmentally sensitive areas.

Establish design and mitigating measures to preserve environmentally sensitive areas.

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SECTION SEVEN - TRANSPORTATION AND UTILITIES Key Civic Commitments and Objectives

- Support Development - Utilize the Transportation/Utility Corridor - Integrate Energy Facilities into the Urban Environment - Protect significant Deposits of Sand and Gravel A. Support Development

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Transportation and utility systems support land use development. Integration of planning and the development of transportation and utility systems is required as an acknowledgement of mutual impacts and in order to minimize adverse impacts. The utilization of different transportation and utility techniques, such as arterial couplets, requires further investigation with respect to their anticipated impacts upon land use.

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Development should be supported through the provision of utilities to meet the servicing needs of growing areas and to maintain servicing standards in older areas.

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B. Utilize the Transportation/Utility Corridor The transportation/utility corridor Restricted Development Area (RDA) is a multiple use corridor which has been designated to accommodate the ring road, power lines, energy pipelines, and other utilities. The City and other major utilities commit to using that corridor to its full potential, wherever possible, while simultaneously avoiding fragmentation elsewhere.

The location of penetration corridors containing pipelines and powerlines from beyond the corridor that must connect with the corridor right-of-way has not been addressed. The issue of penetrator corridors requires

consultation with surrounding municipalities, possibly through the Edmonton Metropolitan Regional

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Planning Commission and with the Province.

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The need to integrate adjacent land uses into the transportation/utility corridor RDA through appropriate secondary land uses or minor intrusions into the RDA is recognized in the Plan.

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C. Integrate Energy Facilities into the Urban Environment The Plan continues previous Council policies of: • avoiding the fragmentation of land by pipelines by promoting the use of the Transportation Utility Corridor; • protecting the integrity of existing lines through the use of guidelines applied through subdivision regulation.

The Plan has introduced policies designed to ensure that new urban development, located in proximity to existing oil and gas extraction or processing facilities is only allowed after all environmental and safety aspects have been considered. This will necessitate effective design guidelines.

D. Protect Significant Deposits of Sand and Gravel Deposits of sand and gravel are a non-renewable resource, critical to the economic viability of development.

This resource is made useless by developing above it, before it is extracted.

The Plan recognizes the direction of the Edmonton Metropolitan Regional Plan to use this resource before land is developed. The Plan also recognizes the need to extract the resource in a sensitive manner and to reclaim the site for urban purposes following extraction.

General Municipal Plan. 44

Section Seven Transportation and Utilities

ISSUE:

OBJECTIVE

Supporting Development

7.A.

The transportation system must continue to support the City's socioeconomic and land use development needs in order to provide for the safe and efficient movement of goods and people.

In the inner city, this requires the maintenance and upgrading of existing roads. In the suburban areas, there is a need to ensure that new residential, commercial, and industrial areas are adequately serviced by new roads and transit facilities. As well, the Downtown requires adequate transportation facilities to support its revitalization.

Throughout the City, a network of pedestrian and bicycle facilities is required to meet both recreational and functional needs. In all instances, the adverse impacts of existing or improved transportation facilities on communities must be minimized.

To provide transportation and utility systems which support and enhance the City's development needs.

POLICIES 7.A.I.

Provide and maintain an integrated system of roadway and transit facilities.

7.A.2.

Minimize the adverse impacts of existing or improved transportation facilities on communities through the use of measures such as noise attenuation, buffering, setbacks, landscaping and traffic management.

7.A.3.

Provide newly developing residential areas with permanent road access and an appropriate level of transit service.

7.A.4.

Ensure major business, employment and commercial areas are adequately served by roads and transit service.

7.A.5.

Accommodate increased travel demand to the Downtown through enhancements to the LRT and surface bus system, and through the implementation of transportation management measures on existing arterial roads.

7.A.6.

Accommodate city-wide travel demands through the ongoing implementation of network modifications and improvements consistent with the Transportation Systems Bylaw.

7.A.7.

Water, sewer and storm utilities are integral parts of urban development. These utilities must be provided in newly 7.A.8. developed areas at levels meeting the needs of residents. In older areas opportunities will be 7.A.9. sought to meet present day and future servicing requirements.

7.A.10.

Encourage the continued development and maintenance of

pedestrian and bicycle facilities, exploiting opportunities to expand facilities and promote their use.

Continue to work closely with the public in the planning and approval of new or enhanced transportation facilities.

Provide newly developing residential and industrial areas with reliable water, sewer and storm utilities to meet the long term

needs of area residents.

Ensure that older areas of the city are supported by water sewer

and storm utilities at service levels compatible with the needs of the present and future land uses.

General Municipal Plan 45

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ISSUE:

OBJECTIVE

Utilizing the 7.B. Transportation/Utility

To develop the transportation/utility corridor and integrate it with adjacent land uses.

Corridor The transportation/utility corridor (TUC) within the restricted development areas was designated as a multiple use corridor to consolidate facilities and avoid the fragmentation of land. The corridor is fulfilling its intended role, incorporating a variety of facilities within its boundaries and the City should continue to use it accordingly.

The City recognizes the considerable development potential for lands within and adjacent to the TUC. Measures will be taken to view these lands as opportunities which can be planned in a coordinated fashion with TUC functions.

POLICIES 7.B.1.

Employ the transportation/utility corridor as a multiple use corridor to accommodate the ring road, power lines, energy pipelines, municipal utilities, and other utilities.

7.B.2.

Investigate and designate penetrator corridors to access the transportation/utility corridor in cooperation with the Province and the Edmonton Metropolitan Regional Planning Commission.

7.B.3.

Use the transportation/utility corridor for appropriate secondary land uses.

7.B.4.

Ensure, in cooperation with the Province, the incorporation of surplus lands into adjacent developments.

7.B.5.

Ensure the mutual compatibility of activities within the corridors with the lands adjacent to the corridors.

General Municipal Plan

••

ISSUE:

OBJECTIVE

Integrating Energy Facilities 7.C. into the Urban Environment Three types of energy facilities pipelines, oil and gas facilities, and electrical transmission lines - present potential safety and urban design problems. Safety problems associated with pipelines most frequently result from inadvertent trespassing on the pipeline right-of-way during servicing or construction. Oil and gas extraction facilities, generally located in the western part of the City, have a sufficient life expectancy that urban development may encroach on these facilities. Electrical transmission lines need to be integrated into development. An approach is needed to ensure coexistence of these resources and urban development.

To maintain the integrity of pipelines and electrical transmission corridors and to integrate oil and gas facilities with urban development.

POLICIES 7.C.1.

Apply guidelines which recognize the need to identify pipeline corridors, provide for safeguards during servicing and construction and which protect adjacent development.

7.C.2.

Encourage the consolidation of oil and gas extractive operations to facilitate their integration with urban development.

7.C•3.

Apply setback, design, and landscaping guidelines to achieve the effective integration of urban development with oil and gas operations and electrical transmission corridors.

7.C.4.

Ensure measures to protect public health and safety are incorporated in the siting, location, design and operation of pipelines, electrical transmission facilities and oil and gas extraction and processing facilities.

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•• •• • • General Municipal Plan - 47

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ISSUE:

OBJECTIVE

To protect, for future use, significant deposits of sand and gravel significant 7.D. Protecting and ensure appropriate rehabilitation after exploitation. deposits of sand and gravel from urban encroachment or conflict.

POLICIES Sand and gravel aggregate 7.D.1. deposits are most evident along the terraces and river bed of the North Saskatchewan River Valley. Although there appears to be a sufficient supply of sand and gravel aggregates for many years within the Edmonton region, there should be a comprehensive assessment indicating where future urban expansion may conflict with this non-renewable resource. Once buildings are constructed over these deposit areas, it will be virtually impossible to extract these minerals.

Identify deposits of sand and gravel having significant commercial potential during the preparation of area structure plans or development concept plans. Protect the deposits from urban encroachment,develop them in a manner compatible with adjacent uses, and finally, rehabilitate them in a safe, environmentally sensitive manner.

General Municipal Plan - 48

Section Eight Implementation General The implementation of the General Municipal Plan will occur through a variety of plans (a hierarchy of statutory and non-statutory documents), development control measures, programs and budgets. As well, an important feature for the successful implementation of the GMP will be a coordinated, corporate commitment.

Plans While the GMP provides the City policy framework for land use planning, various plans for different parts of the City are needed for implementation of the GMP objectives and policies as follows: Suburban Areas/Business and Employment Areas - Development Concept Plans - Area Structure Plans Development Concept Plans will provide the general structure of land use and transportation for larger suburban areas. These plans will be non-statutory.

Area Structure Plans will provide more detail regarding specific land uses, densities, and services to guide the preparation of subdivision plans. The Area Structure Plans will represent a Neighbourhood Plan and will be adopted by bylaw under the provisions of the Planning Act. Inner City Area/Downtown - Area Redevelopment Plans Area redevelopment plans will apply to inner city neighbourhoods where there is a need for specific land use and development guidelines; these plans will be adopted by bylaw under the provisions of the Planning

Act. Topical Plans and Studies Various plans, reports, studies and guidelines will be prepared on topical issues or for specific areas where there is a need for guidance or to resolve issues; the reports or guidelines will be non-statutory in nature.

Map 8 shows the areas of the City considered suitable for the preparation of development concept plans, Area Structure Plans or Area Redevelopment Plans. Council may authorize the preparation of such plans as it

determines they are necessary.

A series of land use control and regulatory measures are provided in the Planning Act and will be used in implementing the GMP. Examples include the land use bylaw which regulates and controls the use and

development of land and buildings, subdivision approvals and development agreements.

Finally, the civic capital and operating budgets can be used to provide the necessary Financial and staff resources to undertake the preparation of plans, provide development control and support the GMP initiatives.

neneral Municipal Plan -

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MAP 8-(as amended, September 14, 1992) AREAS SUITABLE FOR LOCAL PLANNING AREAS SUITABLE FOR AREA REDEVELOPMENT PLANS AREAS SUITABLE FOR AREA STRUCTURE PLANS OR DEVELOPMENT CONCEPT PLANS

MAP 8 AREAS SUITABLE FOR LOCAL PLANNING

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General Municipal Plan - 50

Section Eight Implementation Specific Initiatives The GMP has identified specific initiatives which the municipality will undertake and which will directly achieve the objectives of the GMP. As the implementation of the GMP proceeds, further initiatives can be anticipated and will be identified through the preparation of the annual civic capital and operating budgets.

Implementation of the policies in the GMP will be subject to the availability of funding as evaluated through the capital budget priority setting process.

Coordinated Corporate Approach The successful implementation of the GMP, on an ongoing basis, will require a coordinated corporate approach. Examples include the range of activities needed for the renewal of the selected inner city neighbourhoods. In other cases, there is a clear link between issues such as the needs of the inner city communities and the renewal of the older commercial and industrial areas. The precise nature of the coordinated corporate approach for an initiative cannot be specified in advance and in fact, it will change as implementation occurs. The principle of a commitment to a coordinated, corporate approach to achieving the objectives of the GMP is vital and will be utilized throughout its implementation.

General Municipal Pan

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