Edmonton (Alta.) - 1967 - City of Edmonton general plan, 1967 by Edmonton Tower Resource Centre Online Library

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City of Edmonton general plan Edmonton. Planning

GENERAL PLAN

CITY OF EDMONTON ALBERTA 487a .E3 E373 1967

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GENERAL PLAN

CITY OF EDMONTON ALBERTA

City Council MAYOR:

V. M. Dantzer

ALDERMEN:

James W. Bateman J. Les Bodie Neil Crawford Dr. Ivor G. Dent Reg C. Easton Frank J. Edwards Mrs. Una M. Evans Mrs. J. Kiniski Edmund H. Leger Dr. C. A. McGugan Cec Purves Dr. M. Weinlos ;

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CITY COMMISSIONERS:

Dr. P. Bargen

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ri_644-4-F, •

D. B. Menzies

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J. M. Tweddle S. J. Hampton

11freMMM o. August, 1967

Edmonton Municipal Planning Commission G. Hodge

City Engineer, Chairman

S. C. Rodgers

Director of Planning, Secretary

D. B. Menzies

City Commissioner

Dr. G. H. Ball

Medical Officer of Health

R. F. Duke

City Architect

J. Janzen

Director of Parks and Recreation

A. F. Macdonald

City Solicitor

D. L. MacDonald

Superintendent of the Edmonton Transit System

R. A. Reid

City Assessor and Tax Collector

J. R. Warner

Land Department Superintendent

Mayor's Statement We are proud of our City, particularly because of its dynamic growth and vigour but we are also aware of many of the problems associated with Edmonton's rapid evolution from a prairie town to a major metropolitan centre for a vast region. In terms of growth and size, Edmonton's prospects are unlimited, but the quality of our City in the years ahead will depend to a significant degree upon the decisions made and the actions taken today. The proposals and policies contained in this document are intended to identify, protect and enhance those characteristics which give us cause for pride. Blighted areas, traffic congestion points and other ills of major urban areas are also identified and measures recommended

to correct them. The General Plan is not a static document, it must be adjusted to take into account technological advances and improved methods for identifying trends and resolving urban problems and provision is made for regular review of the Plan accordingly. You are urged to give the most careful consideration to this Plan, not only as it may affect your own residence or place of business, but also toward the City as a whole. The views expressed and comments made by our citizens and represented groups will be given proper study and the Plan adjusted where this is deemed beneficial to the Plan. Through this procedure it is earnestly hoped that the Plan will become identified with the desires and hopes of Edmontonians and will become a powerful instrument in properly guiding our City into the

Acknowledgement

future.

V. M. DANTZER, Q.C., Mayor.

The City of Edmonton Planning Department gratefully acknowledges the assistance it has received from the many public and private agencies concerned with urban development in Edmonton. The information, comments and suggestions supplied by officials of these agencies were invaluable in the preparation of this document.

Preface

The Province of Alberta Planning Act provides that a Municipal Council may prepare a General Plan "describing the manner in which the future development or re-development of the municipality may best be organized and carried out, having regard to considerations of orderliness, economy and convenience". The Plan "shall be prepared on the basis of surveys and studies of land use, population growth, the economic base of the municipality, its transportation and communication needs, public services, social services and such other factors as are relevant to the preparation of a general plan". The process of preparing a General Plan has evolved through three distinct phases: survey, analysis and policy statements. The first stage, survey, consisted of detailed studies of the present distribution and future trends in land use, employment and population. This material was subsequently assembled and presented in the form of a Preliminary General Plan in 1962. The second phase involved detailed research and analysis within each major element of the proposed comprehensive Plan and resulted in the publication of fourteen separate Draft Chapters which are listed below. Chapter I Chapter II Chapter III Chapter IV Chapter V Chapter VI Chapter VII Chapter VIII Chapter IX Chapter X Chapter XI Chapter XIII Chapter XVI Chapter XIX

— — — — — — — — — — — — — —

History, Geography, Region and Conservation. Effect of Resources Development on Growth of Metropolitan Growth and Population. Residential Development. Parks and Recreation. Public and Quasi-Public Uses. Industrial Development. Commercial Development. Generalized Land Use Plan, 2 vols. Downtown Edmonton. Special Planning Studies. Utilities. Programming, Capital Budgeting and Financing. Edmonton Metropolitan Region and District Plan.

Edmonton.

Two areas of enquiry, transportation and urban renewal, were documented in separate reports entitled the Metropolitan Edmonton Transportation Study (2 vols.) and the Urban Renewal Study for Edmonton (3 parts). In 1963 a Summary General Plan was produced. This document was a compilation and condensation of information and policies from the Draft Chapters into a single volume. The third phase is represented by the present volume. Edmonton's General Plan is a comprehensive document outlining the future growth of the City as determined by sound planning principles. The second part of phase three is the preparation of a General Plan Bylaw for adoption by Council. Shortly after the distribution of the General Plan, a proposed General Plan Bylaw will be presented to contain a summation of the more important objectives and principles of the General Plan. After discussion and revision of the proposed bylaw, a final General Plan Bylaw will be prepared for adoption by Council. This will be Council's official statement establishing major policies for future growth and development in Edmonton. When the General Plan is published a shorter "General Plan Summary" will also be issued. This document will be a resume of material contained in the Plan in pamphlet form for distribution to the citizens of Edmonton.

Contents Preface

I History

II Edmonton Region, District and Metropolitan Area

III Population and Employment

IV Urban Growth and Land Use

V Residential Development

VI Commercial Development

VII Industrial Development

VIII Parks and Recreation

IX Public and Semi-Public Uses

X Central Area

XI Urban Renewal

110

XII Transportation

116

XIII Public Utilities

136

XIV Programming

146

XV Financing and Capital Programming

151

XVI Urban Design

159

XVII Implementation

:167

List of Drawings Page II

Ill

EDMONTON REGION, DISTRICT AND METROPOLITAN AREA 1 Delineation of the Edmonton Region 2 Edmonton Region Population Distribution 3 Regional Resources 4 Edmonton Metropolitan Area and District POPULATION AND EMPLOYMENT 1 Population Pyramids 2 City Population 1881 - 2001 3 Urban Development 1902 - 1981 4 Population Distribution 1965

31 34 35 36

5 Population Distribution 1981

URBAN GROWTH AND LAND USE in end pocket 42 in end pocket

I City Land Use 1965 2 Urban Growth Sectors 3 Land Use Plan 1981 V

VII

VIII

XI I

20 21 23 25

RESIDENTIAL DEVELOPMENT 1 Residential Density by Area 2 Neighbourhood Planning

COMMERCIAL DEVELOPMENT 1 Existing and Proposed Commercial Development 2 Principles for Improving a Strip Commercial Area

54 59

INDUSTRIAL DEVELOPMENT 1 Industrial Districts

PARKS AND RECREATION 1 Parks and Recreation Plan 2 Community League, School and Park Combinations 3 Edmonton Recreation District 4 Edmonton Recreation Region 5 River Val ley Park System and Special Facilities

76 77 79 81

PUBLIC AND SEMI-PUBLIC USES 1 Schools 2 Existing and Proposed Buildings, Uniyeesity of Alberta Campus 3 Health, Welfare and Library Buildings 4 Hospitals 5 Police and Fire Buildings

85 86 91 93 94

CENTRAL AREA 1 Proposed Street Modification in Central Edmonton 2 Central Area Plan

3 Civic Centre

99 103 106

URBAN RENEWAL 1 Condition of Housing

113

TRANSPORTATION 1 Existing Roadway Network 2 M.E.T.S. Roadway Plan 3 1981 Roadway Plan 4 Railway Facilities in Edmonton 5 Industrial Airport Minimum Clearance Requirements 6 Edmonton Area Airport Standards

122 123 127 131 133 134

XIII

XIV

PUBLIC UTILITIES 1 Water Distribution System 2 Storm and Sanitary Interceptors 3 Electrical Distribution System 4 Telephone System 5 Gas Distribution Facilities

137 139 142 143 144

PROGRAMMING 1 Staging Plan

147

List of Diagrams Page

Ill

VII

HISTORY 1 Plan for Edmonton Settlement 1883 2 Edmonton in 1910 3 Civic Centre Plan 1912 Scheme A Looking South 4 Civic Centre Plan 1912 Scheme B Looking North 5 Civic Centre Plan 1912 Scheme B Looking South 6 Edmonton's First Arterial Plan Prepared by the Town Planning Commission 7 Civic Centre Plan 1947 Looking North 8 Civic Centre Plan 1947 9 Proposed Edmonton City Centre 1950 10 Edmonton's First Comprehensive Neighbourhood Unit "Parkollen" 1950

13 13 14 14 14 15 15 15 17 17

POPULATION AND EMPLOYMENT 1 Natural Increase â&#x20AC;&#x201D; Births Less Deaths 2 Total Population Increase 3 Marriage Rates 4 Ethnic Background 1961 5 Place of Birth 6 Predominant Religious Denominations 7 Population Projections 8 Percentage Employment by Industry in Edmonton and Eleven Major Canadian Cities

29 29 30 30 30 32 33 38

URBAN GROWTH AND LAND USE 1 Future Land Requirements 1965- 1981

RESIDENTIAL DEVELOPMENT 1 Annual Dwelling Unit Construction in Edmonton 2 City Residential Development 1951 - 1981 3 Density Chcnges from the City Centre to its Periphery 4 The Neighbourhood in Relation to the Community and the District 5 Buffering Residential Areas from Major Roadways 6 Improvements in Daylighting by Careful Siting 7 Apartment Development

45 46 48 50 50 50 51

COMMERCIAL DEVELOPMENT 1 Introduction of Buffer Strips 2 Vertical Separation of Traffic in Shopping Centres and the Downtown 3 Existing Whyte Avenue Commercial District 4 Alternative Land Use Pattern in the Whyte Avenue Commercial District

53 56 60 61

INDUSTRIAL DEVELOPMENT 1 Gross Value of Manufacturing Production 1961 2 Comparative Manufacturing Employment Distribution 1961 3 Metropolitan Employment 1961 - 1981 4 1965 and 1981 Industrial Areas

63 64 68 69

vi i

5 The Local Economy 6 Inputs and Outputs 7 Southeast Industrial Area Staging and Design Plan

70 71 71 Page

VIII

PARKS AND RECREATION 1 Neighbourhood Playground 2 Neighbourhood Ornamental Pork

75 75

CENTRAL AREA 1 The Central Area 2 Central Area Employment 3 Pedestrian Moll 4 Pedestrian Overpass 5 Anticipated 1980 Traffic Volumes in Downtown Edmonton 6 Comprehensive Redevelopment 7 Central Area Functional Uses

XI I

XIII

XVI

97 97 98 98 99 102 104

URBAN RENEWAL 1 Characteristics of Queen's Avenue, McCauley and the Alex Taylor Districts Compared with the Rest of Edmonton 2 Cost Shoring Arrangements of Urban Renewal Programs

110 111

TRANSPORTATION 1 Corridor Traffic, Population and Employment 2 The M.E.T.S. Roadway System 3 Bechtel Rapid Transit Plan 4 Central Area Parking Plan 5 Modes of Travel to the Downtown Resulting from Different Transportation Systems 6 Rapid Transit 7 Existing Railway Facilities Suggested for Mass Transit Use

116 118 124 125 128 129 129

PUBLIC UTILITIES Utility Requirements for the City of Edmonton 1

136

FINANCING AND CAPITAL PROGRAMMING 1 Gross Annual Expenditures 2 City Taxable Assessment 3 Property Tax Yields 4 Estimated Sources of Revenue 1966 5 Provincial Grants to the City of Edmonton 6 Contributions from Net Civic Utility Profits and Five Percent Civic Utility Tax 1956- 1966 7 Current General Expenditures for Edmonton 1956 - 1966 8 General and Utilities Capital Expenditures for Edmonton 1956 - 1966 _ 9 City of Edmonton Total Tax Levy per Capita 1956 - 1966 10 Proposed Capital Improvement for the City of Edmonton 11 General Procedure for the Capital Improvement Program 12 General Procedure for the Capitol Improvement Budget and the Annual Operating Budget

151 151 151 152 153 153 154 154 154 156 157 157

URBAN DESIGN 1 Attractively Landscaped Pedestrian-Ways 2 Covered and Heated Downtown Shopping Arcades 3 Futuristic View of Pedestrian Mall

VIII

162 163 163

Director's Statement Edmonton's General Plan contains major policies concerning future development based on social and economic goals; these policies are intended as a guide to future growth and development and which, although subject to modification, do imply commitment. These policies will be officially recognized when public hearings have been held and a General Plan Bylaw has been adopted. The basic elements of this Plan are policy Statements regarding the major urban land uses, the City's relationship to its region, growth and the directions in which urban expansion will be guided, transportation, urban design and implementation. The Plan is not only the basis of a legal guide for future development but is also intended to stimulate public interest in Edmonton's future. A brief historical review is included to show the City's past development in relation to present and future growth. The policy recommendations of the General Plan have been drafted as introductory statements, statements of plans and lists of objectives and principles. Detailed space standards and illustrations of principles and plans have been included where they are essential to properly understand the general policies. The introductory statements and statements of plans are limited to material that is basic or relative to policies which must be included as a part of the Plan but cannot be written as objectives and principles. The objectives are the basic goals to be arrived at by the City in guiding and controlling development; the principles are fundamental policies which must be applied in order to achieve the goals already established. The term of this Plan is fifteen years â&#x20AC;&#x201D; to 1981. Edmonton's General Plan, as a statement of policy, is primarily intended as an instrument of legislative policy; it is Council's official statement and, when this changes, so should the Plan. The Plan is probably the most far-reaching single piece of legislation that Council can consider and should, for this reason, receive careful and diligent attention by Council. The General Plan process is a dynamic one in which continued survey and analysis is essential to assure the validity of the policies contained herein. Supplementary studies will be prepared to investigate various aspects in more detail, to update some and broaden others. These supplementary reports may recommend some changes to the Plan. The amendment procedure to the Plan should be less fluid than amendments to the Zoning Bylaw in order to encourage careful and comprehensive thought on any proposed change. The amendment procedure to the General Plan, otherwise, will follow the procedure laid down in the Planning Act for a General Plan Bylaw, that is, the Council will completely review the Plan every five years and may, by bylaw, amend it. The General Plan will allow Council to consider and agree upon a definite set of policies to govern future development and the general physical design of the City. It will enable Council to view every specific project upon which it must act against a definite framework of a desirable, long-range plan for the entire community. It will enable Council to convey its long-range development policy to the citizens and to leaders of government, civic and business organizations. The General Plan will help to provide a functional, beautiful and efficient environment for the people of Edmonton. It outlines the means by which Edmonton's future growth will be accommodated and suggests suitable development policies to guide this growth. It provides the basis for an efficient, balanced transportation system serving all parts of the City and brings professional and technical knowledge to bear on political decisions concerning the physical development of the community. Finally, and perhaps most important of all, it injects long-range considerations into the day-to-day decision making process.

S. C. RODGERS, Director of Planning.

An Hierarchy of Urban Planning Goals

OVERALL GOAL: To provide the physical environment which would give the

OVERALC GOAL

people of the community the opportunity to obtain "The Good Life".

THE GOOD LIFE

BASIC GOALS BASIC GOALS:

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OBJECTIVES

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These goals must be rational and internally consistent,

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Throughout this General Plan emphasis has been given to the inclusion of concise statements of objectives and principles — statements which have their origin in the desire to achieve economy, efficiency, beauty, protection of person and property, freedom of choice and equity. The above diagram is provided to assist the reader in his review of this Plan and to aid in his understanding of how the City of Edmonton Planning Department is working to make Edmonton a better place to live.

Pre. 1795 "Edmontonâ&#x20AC;&#x201D;a rich and bountiful country abounding in all kinds of animals". Angus Show 1795.

What is now the City of Edmonton was once a wilderness where Wood-Cree Indians roamed and hunted bountiful wild game. The area was part of Ruperts Land, governed under Charter by the Hudson's Bay Company until 1869 when the Company transferred it to Canada. The fur potential of the Edmonton Area attracted early French fur traders to the North Saskatchewan and there is some evidence that a trading post was established on the south bank of the River.

"Pictures of Stone" Indian pictographs of early Alberta.

1795

T h c North-West Company built Fort Augustus near Edmonton in 1795.

Old Fort Augustus was built at the confluence of the Sturgeon and North Saskatchewan Rivers by Angus Shaw of the North-West Company. Later the same year William Tomison erected the first Fort Edmonton near Fort Augustus. He selected the name of Edmonton after the name of a community near London, England, the birthplace of Sir James Winter Lake who served as Deputy Governor of the Hudson's Bay Company at this time.

Mighty herds of buffalo stretched as far as the eye could see.

1798 The X.Y. Co. built a fort at Edmonton.

1802-1804 Fort Edmonton and Fort Augustus on the Sturgeon River were abandoned and rebuilt near the present City Power Plant. In 1804 the X.Y. Company united with the North-West Company. The first Fort Edmonton, constructed in 1795, was subsequently destroyed by t h e Blackfoot Indians.

A company of "Adventurers" trading into Hudson's Boy founded Fort Edmonton in Ruperts Land.

The Hudson's Bay Company's "Fort Edmonton" â&#x20AC;&#x201D; as painted by the Canadian Artist, Paul Kane 1848.

A photograph of the original Fort Edmonton in 1 870 showing the palisades and bastions overlooking the North Saskatchewan River.

1810

A Dinner in 1825 might include buffalo, moose, whitefish, beavers tail and a potent home brew.

The Forts Augustus and Edmonton near the site of the present City Power Plant were abandoned because of threat from Indian attack. As a result, a third site was selected and new Forts Augustus and Edmonton were built together for strength against Indian attack at White Earth River near Pakan. These Forts were also known as Lower Terre Blanche and White Earth House. Two others, Upper Terre Blanche Fort and Little White Earth House were constructed near Lake Wabamun.

Factor R ow ond built the big house called "Rowand's Folly" at Fort Edmonton in 1830.

1812

Early Hudson's Boy fur traders "en portage" in the Great Northwest.

In 1812 work was started on a fourth new Fort Augustus and Fort Edmonton on the old sites near the present City Power Plant. The North-West Company settled on the flats where the Victoria Golf Course is now located and the Hudson's Bay Company chose the site below the present Legislative Building. The sites were selected because explorer David Thompson's new route to Fort Vancouver passed conveniently nearby.

1821

Father Locombe's ox-cart become the famous Red River Carts of the period.

The North-West and Hudson's Bay Company united and Fort Edmonton became the major trading centre on the North Saskatchewan River, supplied mainly by packhorse trains using overland routes.

1827 - 1830

York Boats were built by the Hudson's Boy Co. and were used between York Factory and Edmonton.

Factor Rowand rebuilt Fort Edmonton on the present Legislative Grounds since the power house site was subject to flooding. Edmonton became famous for its hospitality and was visited by many of Canada's famous pioneers: Simpson, the first Governnor and Chief of Ruperts Land; Paul Kane, a Canadian Artist; Douglas, the Botanist; and Palliser, the Explorer, to name only a few.

Gold at Clover Bar brought hundreds of prospectors but the famous Klondike brought thousands.

KEY LOCATIONS OF EARLY FORTS FORT AUGIalg _14E1. 795- 11303 2

FORT E03,10110,44, (X12., 1795 -1603

FORT AUGUSTUS 2nd) 1802-1810 FORT EDMONTON ( 2 Nd 1802 -1810

FORT â&#x20AC;¢UGUSTuS I 3r8 1810 -1812 LF"

FORT EDMONTON I 3.1) 0110 -1812 6

UPPER TERRE BLANCHE IMO

FORT EDMONTON (418) 1830-1915

LITTLE WHITE EARTH HOUSE 1810

AREAS OF INDIAN TRIBES A SLAVEY 8 - BEAVER C -CHIPEWYAN 0 - CREE E - STONY F - SARCEE A - BLACKFOOT H - ASSINIBOINE d -PEiGAN K - GROSS VENTRE I - 151_000 EARLY FUR TRADERS TRAILS

Map of Alberta Showing Location of Forts in the Edmonton Area, Fur Trader Trails and Areas Inhabited by Various Indian Tribes.

1840- 1852

Father Lacombe saved Fort Edmonton from the Blackfoot.

Early missionaries contributed much to stimulate growth in the Edmonton area. Reverend Rundle was the first resident missionary. Father Thibault established the Lac St. Anne Mission and the beloved Father Lacombe arrived at Fort Edmonton and established the St. Albert Colony in 1861.

1862

Virgin stands of pine, spruce and poplar provided the pioneer with shelter, fuel a n d transportation.

Father Lacombe introduced Red River Carts which were a great aid in bringing people to Edmonton. Transportation prior to this time was by York Boat, canoe and by pack horse. The "Overlanders" travelled through Edmonton to the Cariboo Goldfields in B.C. After disappointment they returned through Edmonton and stopped to pan the bars of the River near present Clover Bor. This started Edmonton's own gold rush. When this lure faded out, many of them settled on land near Edmonton. McDougall Church, built in 1871, was Edmonton's first Protestant Church that still stands.

The famous Stern Wheelers â&#x20AC;&#x201D; "The Northcote," "The Northwest," "The Marquis," " T h e Lily" and "The Princess."

1868

1870

"Edmonton," wrote Reverend John McDougall in 1868, "stands for the centredom of the great Saskatchewan country â&#x20AC;&#x201D;the centre in religion, government, commerce, and transportation. Within the four walls of yonder little fort, and within its wooden bastions large business is conducted, and far-reaching measures are planned." It was the year after Confederation and the economic potential of the Northwest was being studied when John McDougall paused across the River from the Hudson's Bay Company trading post on the North bank of the North Saskatchewan. He might have added, that of the original trading establishments, it alone was destined to become the major city of Canada's Northwest with the same qualities he described so long ago.

Low and order was brought to the colony by the Northwest Mounted Police.

The early law of the land was often the law of the gun.

_ Reverend Father Lacombe played a prominent role as a pioneer missionary in early Edmonton. He arrived at Edmonton in 1852.

Reverend Robert Terrill Rundle the first Protestant missionary in northwest Canada arrived at Edmonton in 1840.

The Red River Cart and York Boats in 1880 comprised the chief method of transportation to the Edmonton settlement.

Crowfoot, Head Chief of the warlike Blackfoot Notionâ&#x20AC;&#x201D;beloved by his people, feared by his foes but esteemed by all.

Reverend John McDougoll, Reverend R. B. Steinhauer, Chief Pakan, Chief Samson and Chief Johas.

1868- 1870

---......4 Edmonton's first regular mail service reached Edmonton in 1876. _,--

Emily Murphyâ&#x20AC;&#x201D;noted author and social rights advocate arrived in Edmonton. Father Lacombe saved Fort Edmonton from destruction by the Blackfoot. Local Indians decimated by smallpox and the last great war between the Crees and Blackfoot was fought and Edmonton consequently became more attractive to settlers.

The lost great Indian battle between the warlike Blackfoot and the Cree in 1870.

1871 -1875 The Village of Edmonton was incorporated in 1871. Reverend George McDougall built Edmonton's first Protestant Church. Colonel Jarvis and fifty North-West Mounted Police arrived in Edmonton to provide law and order. The Hudson's Bay steamer, "Northcote," arrived at Edmonton and the York Boats disappeared. Transportation by river opened the whole region to settlement.

1876 - 1877 A survey for the C.P.R. mainline provided Edmonton with its first land boom.

Regular mail service was established between Edmonton and Fort Garryâ&#x20AC;&#x201D;by dog team in the winter and by horse in the summer. Treaty Six was made with Chief Samson of the Crees resulting in the Inc:flans giving up their interest in land around Edmonton and settling on a reserve set aside at Bear Hills (Hobbema).

The "Sod Buster" our first farmers.

1880

Stage Coach service was established to Calgary in 1883.

Edmonton's first paper, the "Bulletin" was published marking the first of a number of urban characteristics Edmonton began to develop. Telegraph service was introduced. Edmonton experienced its first land boom as surveyors mapped out routes for the C.P.R. mainline that was expected to pass through the Yellowhead Pass. Trading stores, churches and some industry appeared. The boom period ended when it became known that the Railway would go by way of the Kicking Horse Pass and Calgary.

The Canadian Pacific Railway reached Strathcona in 1891.

A Klondike outfitting party in front of the Hudson's Bay Store on Jasper Avenue in 1898.

Gold found in the River at Edmonton. A dredge working near Grierson Hill in 1898.

â&#x20AC;&#x201D; Walter's Ferry is shown moving freight and people across the North Saskatchewan River. The old mill is shown in the background on Walterdale flats.

1882- 1883

Chief Crowfoot, â&#x20AC;&#x201C;L.' Statesman of the Plainâ&#x20AC;&#x201D;his peaceful policies enabled Edmonton to become established.

Edmonton reached a population of 300 with coal mining, milling, fur trading, lumber, agriculture and a brick plant the major industries. Dominion Land Surveyors divided the District into townships. Stagecoach service was established to Calgary and six steamboats operated on the North Saskatchewan.

1891 -1897 The first railway, the Canadian Pacific Railway, reached Strathcona and made Edmonton an outfitting and terminal centre for prospectors travelling to the fabulous Klondike. Edmonton gained town status with Matt McCauley as the first town Mayor. The Town grew considerably, reaching a population of 1638.

[ Edmonton becomes an outfitting centre for the North in 1897.

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of Sfrolhcono

1901 - 1905

The Canadian Northern Railway linked Edmonton and the C.P.R. System in Strathcona in 1901.

The Canadian Northern built a railway down the valley of the River and Mill Creek connecting Edmonton with the C.P.R. system. Immigrants from the east arrived and land speculation was at a peak. Edmonton reached a population of 5,000 and was incorporated as a City in 1904. William Short was Mayor at the time, followed a year later by K. W. MacKenzie as the first elected City Mayor. The City purchased the Telephone System from a private company. Edmonton's first Bylaw was passed providing money for water and sewer installations. The Province of Alberta was created in 1905 and Edmonton was designated as its Capital.

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Edmonton 1904.

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1906- 1911

In 1905 the Province of Alberta was created.

The University of Alberta was located in Strathcona. The construction of the Legislative Buildings began in 1907. The Grand Trunk Pacific Railway was built to Prince Rupert through Edmonton. City population reached 31,064. The Radial Railway began as a City transit service with 12 miles of track.

The University of Alberta was established in Strothcona in 1906.

Paddle Wheelers replaced the York Boats as a means of river transportation.

The Edmonton, Yukon and Pacific Railway reaches Edmonton in 1901.

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Edmonton reaches City status in 1904 and the first elected Mayor, K. W. MacKenzie, Commissioners and Council take office in 1905.

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1912- 1914

Construction of Legislative Building began in 1907.

The municipalities of Edmonton and Strathcono amalgamated and the combined population reached 53,611 in an area of 40 square miles. In 1914 the population reached 72,516 marking the peak of the second land boom. The High Level, the Dawson and 105th Street bridges were completed. North Edmonton was annexed to Edmonton in 1912 and Calder in 1917. This period also witnessed the consolidation of the Downtown area and construction of many major buildings. A street numbering system was adopted.

Edmonton's land boom created an optimism about its future. _.-----

1915 - 1938

Roads to Alaska and the North.

The Canadian Northern mainline from Winnipeg to Vancouver was built through Edmonton opening up the rich agricultural areas east of Edmonton. In 1916 the Alberta and Great Waterways Railway was built to Fort McMurray connecting Edmonton by rail with the Mackenzie River Valley. Use of natural gas began in 1923. During this period the population dropped as a result of the depressed economic conditions.

1939 - 1946 Edmonton recovered from the depression and reached a population of 93,817 in 1941. Work on the Alaska Highway began.

"Black Gold" discovered at Leduc in 1947 established Edmonton as the oil and gas capital.

1947

igee ,

Discovery of oil at Leduc, south of Edmonton, triggered a period of rapid growth and new prosperity. Population quadrupled between 1939 and 1965 and industrialization increased beyond expectation.

1965 Edmonton became the "Gateway to the North."

Edmonton, with a population of 373,000, is Western Canada's refining and petrochemical centreâ&#x20AC;&#x17E; and one of the West's leading industrial, resource, research and educational centres.

1 1

Our past re-lived in a modern-day pageant â&#x20AC;&#x201D; Klondike Days.

The official opening of Edmonton's first cross-river bridge, the Low Level in 1900.

The City of Edmonton, 1908. Population approximately 21,000.

During the Boom Period â&#x20AC;&#x201D; the High Level Bridge and Legislative Buildings are shown under construction in 1911.

HISTORY OF PLANNING

degree, did contain limitations on site coverage, requirements for side and rear yards and minimum spacing requirements between buildings.

Throughout most of its history, the City Of Edmonton has been under some form of planning legislation. Through civic and community effort, city planning and especially planning for a civic centre has been of continuing interest for over half a century.

In the same year, at the expense of former Edmonton Mayor H. M. E. Evans, proposals were made to the City by Morell and Nichols of Minneapolis, Minnesota, a landscape architectural firm, for the development of a Civic Centre. Arising from this plan, the area between the old Post Office and the C.N.R. Station, lying between 99th and 100th Streets, was designated as a Civic Centre area. In March, 1913, a poll was held for public support of the Civic Centre but the bylaw was turned down by the voters and the plan shelved.

The original settlements in Edmonton were subdivided into "pie-shaped" lots running adjacent to the River providing each settler with a portion of river frontage. As the City grew it adopted the standard Grid Dominion Land Survey pattern for streets and parks and extended this form beyond the North Saskatchewan River lots which themselves projected about a mile from each bank of the River. Superimposed on this pattern is a system of diagonal arterial streets which trace the routes of the original paths and trails into the City.

In the same year, the Town Planning Act was introduced by the Province. Provisions were made for the preparation of Town Planning Schemes, but were never made use of as there was no local authority capable of carrying out the Schemes and because the legislation was somewhat vague. In 1922 the Town Planning Act was revised, providing-for the establishment of Town Planning Commissions which would be responsible for carrying out Town Planning Schemes. However, action under this Act also

At the turn of the 19th Century, Edmontonions were beginning to visualize a great city and much interest was shown in its development. The first comprehensive set of building code regulations for houses and apartments was passed in 1912 (Bylaw No. 417). This Bylaw, although not restricting development to any great

DIAG. 1 — PLAN FOR EDMONTON SETTLEMENT 1883. From the beginning, the North Saskatchewan River influenced Edmonton's development pattern. The - pie-shaped" lots adjacent to the River were an early characteristic.

DIAG. 2 — EDMONTON IN 1910. The initial grid pattern gave Edmonton its basic form which is still very evident today.

P L_A. IT

EDMONTON SETTLEMENT

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lagged until 1928 when the title of the Act was dropped and in its place was adopted "An Act to Facilitate Town Planning and the Preservation of Natural Beauties in the Province." This Act made provision for a Town and Rural Planning Advisory Board to control outdoor advertising and ribbon development along highways, and preserve natural beauty. In the meantime, Edmonton's hopes for a Civic Centre were revived and again Council at that time pledged the area proposed in 1912. In November, 1925, Council recommended to: list all privately owned properties in the proposed

Civic Centre area; to list all properties owned by the City within the Civic Centre area; and to list properties belonging to the City proposed to be exchanged for privately owned property within the area and recommending in the meantime that Commissioners undertake negotiations with respective owners for property with a view to exchange. In May, 1926, it was passed by Council that all property within the proposed Civic Centre area be withheld from sale or exchange until such time as Edmonton completes the establishment of a Civic Centre. Not long after, a commercial building was allowed to be built in the designated Civic Centre area, thus diminishing in size the originally proposed area by cutting off that portion of the Civic Centre lying south of 102A Avenue. This was sufficient to dampen,

DIAG. 4 - CIVIC CENTRE PLAN 1912 SCHEME B LOOKING NORTH.

DIAG. 5 - CIVIC CENTRE PLAN 1912 SCHEME B LOOKING SOUTH.

DIAG. 3 - CIVIC CENTRE PLAN 1912 SCHEME A LOOKING SOUTH.

EDMONTON ALDER TA

PRESENT

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.CITY OF [DIAOIRODI

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DIAG. 6 — EDMONTON'S FIRST ARTERIAL PLAN PREPARED BY THE TOWN PLANNING COMMISSION.

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DIAG. 8 — CIVIC CENTRE PLAN 1947. Revived plans for the Civic Centre proposed to include a Civic Auditorium, Museum and Art Centre, a new City Hall, a Federal Building, a Provincial Office Building, Court House Extension, a Communications Building and a central open area between 99th and 100th Streets and between 102nd and 103rd Avenue.

DEVELOPMENT

CENTRE ALBERTA

CITY ALICI.IITECTS DEPAPTMENT

for a time, the enthusiasm for a Civic Centre. In 1929, the Provincial Government rendered important legislative changes to the Town Planning Act, greatly affecting planning in Edmonton. The new Town Planning Act repealed the 1922 and 1928 Acts and established legislation for: Town Planning Commissions, Regional Planning Commissions, official Town Plans and Schemes, Zoning Bylaws and Appeals and enforcement and control of zoning bylaws. In the same year, the City appointed a Town Planning Commission and subsequently a Major Street Plan was drawn up in 1930 and approved, with certain modifications, in 1932. In 1933, with the passing of the first comprehensive "Zoning Bylaw," and the adoption of an official Town Plan, the Civic Centre was once again designated as such. In this regard the Town Planning Commission prepared two tentative plans and re-

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EDMONTON ALISLA TA.

DISTRICT MAP

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933.

Map of First Zoning Bylaw 1933.

Edmonton," a "Zoning Bylaw" that was not doing the job and a Town Planning Commission of unpaid lay citizens doing advisory work. Some of the recommendations of this study, such as the implementation of the techniques of interim development control pending completion of a general plan, were incorporated in the amendments of The Town and Rural Planning Act in 1950. Shortly thereafter City Council passed Interim Development Bylaw No. 1 thereby suspending the 1933 Zoning Bylaw. Concurrently the Planning Department was strengthened and the first comprehensive neighbourhood unit "Parkallen" was planned that year.

commended to the City the purchase. of all privately owned property between 101A and 104th Avenues and between 99th and 100th Streets. The Commission was influential in preventing the proposed placing of the Federal Building on the old Market Square site and in preserving what was left of the open area for the currently proposed Sir Winston Churchill Park. In 1945, the City Commissioners purchased the commercial building in the Civic Centre park area and it finally appeared as though Edmonton was making headway towards the long planned Civic Centre. In April, 1947, the Town Planning Commission presented a new tentative plan to the Commissioners on the development of the Civic Centre, showing proposals for the placement of buildings and the co-ordinating of development.

The failure to expand City boundaries as recommended by the McNally Commission in 1956 was compensated, to some extent, by a considerable increase in the power of the Edmonton District Planning Commission to control urban fringe growth.

Council approved the proposed Plan in principle but no further action was taken until 1950 when the Edmonton City Centre plan, or more commonly known as the Detwiler Plan was presented. This Plan was submitted to a vote and was rejected by the public.

Inspired by a proposal for land development in the Civic Centre by Webb and Knapp of New York in 1961, Edmonton once again embarked on a plan for guaranteeing the future health of the heart of the City. A modified plan was approved in principle and is currently a part of the General Plan.

By this time, as a result of the discovery of oil near Edmonton, the City entered a period of major growth and expansion. The 1933 Zoning Bylaw was recognized to be too rigid and static and led to a consulting report in 1949 which recommended, among other things, the establishment of a Town Planning Department. The City had also retained the services of two consultants from McGill University to prepare a report on problems facing Edmonton resulting from an but-of-date "Master Plan for Major Streets for

DIAG. 10 — EDMONTON'S FIRST COMPREHENSIVE NEIGHBOURHOOD UNIT "PARKALLEN" 1950. Comprehensively planned residential areas were one of the many features arising after the establishment of the Planning Department. j

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DIAG. 9 — PROPOSED "EDMONTON CITY CENTRE" 1950. The "Detwiler Plan" proposed parking facilities for 1800 motor vehicles, a public auditorium, a Market, covered sidewalks, a professional building, office and commercial building, appropriate landscaping and illumination of the project during evening hours.

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An amendment to the Town and Rural Planning Act allowed the City to adopt Zoning Control for areas where studies for a comprehensive General Plan were sufficiently advanced. By the end of 1961 a Zoning Bylaw was adopted for many of the residential districts planned and developed since World War II. Successive additions to the Zoning Bylaw have been made since that time.

District Planning Commissions were renamed Regional Planning Commissions and Technical Planning Boards renamed Municipal Planning Cornmissions. For the areas still under Development Control in 1964 and awaiting a completed General Plan and Zoning Bylaw, a Land Use Classification Guide was adopted to simplify administration and avoid the excesses of discretionary authority.

Basic surveys for the Metropolitan Edmonton Transportation Study stimulated progress on the General Planâ&#x20AC;&#x201D;particularly in the field of land use, population and employment studies.

In April, 1965, the Alberta Housing Act was passed to encourage activity in urban renewal in towns and cities in co-operation with the Provincial and Federal Governments. The act provides for financing of urban renewal studies, public housing, financing, renovation and repair of dilapidated housing, the establishment of minimum housing standards and the acquisition and disposal of land.

In the past few years several amendments to Provincial Planning legislation have been enacted. In 1963 the Town and Rural Planning Act was replaced by "The Planning Act." The new Planning Act allowed for some simplification of administrative procedure, provided a greater degree of responsibility to the municipal authorities on such matters as title to roads, public reserves and some questions of appeal and clarified some sections of the previous Act.

Thorough periodic reviews of planning legislation have encouraged good municipal planning control within one of the most progressive Planning Acts in North Americo.

Chapter II

EDMONTON REGION, DISTRICT AND METROPOLITAN AREA in 1961 had a population of about 60,000 people.

THE REGION Edmonton is the dominant centre of a vast region extending south to the Red Deer River, north to the Arctic Islands, east to Lake Athabasca and west to the Western Cordillera. This region is a spatial entity overlapping municipal, provincial and territorial boundaries.

Regional Resources Population growth in the region is, in part dependent on the extent of new resource development. The exact nature of the future population pattern, therefore, cannot be established as vast areas of the region have yet to be explored to determine its full potential as a supplier of minerals and other products.

The Edmonton region is essentially that area in which the City of Edmonton plays a dominant role as a supplier of goods, as a centre of services, as an administrative centre, as a base for operations and as a financial and government centre. The demand for these services from outlying communities influences the provision and location of transportation and communication facilities and services. At the same time, the size of the region is dependent on the quality of the existing communications network and the extent to which this network is utilized and improved.

The Edmonton region contains one of the richest agricultural areas in Western Canada producing excellent wheat, forage crops and coarse grains. Alberta has several millions of acres of potentially arable land not yet under cultivation and even greater amounts of land suitable for grazing, almost all of which is north and west of Edmonton in the Peace River and Great Slave Lake areas and the Mackenzie River Valley. The raising of beef cattle and other stock is an important agricultural activity, particularly at the region's core, and serves Edmonton's largest industrial employerâ&#x20AC;&#x201D;the meat packing industry. Improved transportation in the region and the maintenance of attractive legislation for homesteaders and farmers will continue to assist in the opening up of new areas for agricultural use.

Natural features, such as climate, physiography, soils, drainage, mineral resources, flora and fauna reinforce the general homogeneity of the region and the determination of its limits. Development within this region affects Edmonton profoundly by generally increasing business activity, tourism and population and consequently creating demands for new offices, homes, warehouses, transport facilities and industrial, government and cultural buildings. Regional development can also be influenced by the many activities and services which exist in Edmonton. Edmonton and its region are, therefore, mutually interdependent and equally important to one another.

The forests which lie north and west of Edmonton consist largely of spruce, pine, poplar and birch. Although these forests presently support lumber, plywood and pulpwood operations, the type, size and rote of maturation of local trees suggest a greater expansion of pulpwood operations. Good forest management is necessary to ensure a continued supply of treed areas and should be co-ordinated with management of the water resources, forest recreation and wildlife.

The region, with a population of 957,600 people in 1961, covers an area of some 1,000,000 square miles. Almost 340,000 people or 35.5 percent were resident in Metropolitan Edmonton in 1961, and 618,000 people or 64.6 per cent within a 100 mile radius of this City. The remainder of the region is sparsely populated with the exception of the Peace River area which

Recreation and wildlife resources are important to the Edmonton region and should become more so as population, leisure time and incomes increase. Through population expansion

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PHYSIOGRAPHY

0 to 10" 10" to 15" 15" to 20"

11. 20" to 40" PRECIPITATION

EDMONTON GENERAL PLAN

DWG

DELINEATION OF THE EDMONTON REGION

1 CHAPTER II

Each Dot Represents 1,000 Persons Except: Edmonton Calgary Lethbridge Medicine Hat Red Deer

337,000 280,000 36,000 25,000 20,000

COMPILED FROM 1961 CENSUS OF CANADA CIRCLE REFERS TO 100 MILE RADIUS ENCLOSING A POPULATION OF 518,000

EDMONTON GENERAL PLAN

DWG.

EDMONTON REGION POPULATION DISTRIBUTION

EDMONTON REGION, DISTRICT & METROPOLITAN AREA

CHAPTER I I

the supply of wildlife and natural areas for recreational use have been drastically reduced in many parts of the world. The present abundance of these types of areas should not preclude the early provision of a strong conservation program for wildlife and recreational resources throughout the Edmonton region.

and nickel depositsâ&#x20AC;&#x201D;has been underway for some time. The development of an immense high grade iron ore deposit which straddles the Yukon and Northwest Territories' boundary has yet to proceed. However, a pilot plant to test the commercial feasibility of producing metallic iron briquettes from relatively low grade iron ore deposits in the Peace River area is presently in operation on the outskirts of the City.

The existence of mineral resources are of primary importance to the future development of the region. Mineral resources such as coal, natural gas, crude oil, gypsum, base metals, gold, glass sand, copper, soluble salts, sulphur, limestone, iron ore and common salt are abundant.

The Regional Transportation Network The key to exploration and development of regional resources is an adequate transportation network of roads, railroads, airport facilities, pipelines and, in some cases, port facilities.

Without doubt, the discovery, almost 20 years ago, of a major oilfield just south of Edmonton has been a major factor in the City's growth. In 1963, for example, the value of production of crude oil and natural gas and related products amounted to over 90 percent of the $637,000,000 worth of minerals produced in Alberta. The Edmonton region has the folInwing major oilfields: Lesser Slave, LeducWoodbend, Pembina, Swan Hills, Rainbow Lake, Judy Creek, Wizard Lake, Bonnie Glen; and the following major gas fields: Carson Creek, VikingKinsella and Westrose South. Recoverable reserves of Provincial oil and gas amount to over 4 billion barrels and 34 trillion cubic feet respectively. In addition, it is estimated that the oil deposits in the Athabasca Tar Sands in northeastern Alberta might be as high as 700 billion barrels of oil of which 300 billion barrels of upgraded synthetic crude oil could be produced. Known world reserves, excluding the tar sands, are estimated to be 200 billion barrels. A plant, employing one of several techniques tested to process the tar sands is presently under construction near Fort McMurray to recover oil from the sands.

Roads presently nearing completion include a rood from Edmonton to Fort McMurray, the Slave Lake cutoff, Hines Creek to British Columbia boundary, Yellowhead Route to the West Coast and Watson Lake to Carmacks. The Federal Government will soon be implementing its 10-20 year roadway program for the Northwest Territories and the Yukon. Through the co-operative efforts of the Province of Alberta and the Canadian National Railways, a "resources" rail line from Hinton north through a region with known coal and timber resources is being developed. Construction of at least 10 new airports in Northern Alberta was completed in 1965â&#x20AC;&#x201D;most notably at Fort Chipewyon, Slave Lake, Elk Creek, Mayburne, Manning and Keg River. Within the context of a five year airport development program, the Province of Alberta will continue to construct new airports and expand existing terminals thereby reducing the travelling time between points within this vast region. The Federal Government, responsible for airport facilities in the Northwest Territories and the Yukon, has also completed major improvement programs at several locations in the region and a ten year airport development program has been established. Expansion of other communication and transport facilities, including microwave systems, pipelines and ports is proceeding at a rapid pace. Competition from other cities in Western Canada for providing services to the region is keen and the extent to which Edmonton will benefit from the growth in the region is dependent on how effectively local firms will be able to satisfy regional needs.

The recovery of oil and natural gas from these fields has boosted the local economy as evidenced by the development of oil refineries, petrochemical plants, pipe mills and related administrative, scientific and supply centres in the Metropolitan Area. Many promising areas in the region have yet to be subject to seismic tests and drilling programs. Mineable reserves of coal in Alberta total almost 50 billion tons or about one half of Canada's total. The historic decline of coal production as a result of competition from oil and natural gas has been slowed somewhat by the recent significance coal has had in the thermal production of electricity. Other uses for coal ore presently being investigated by the Research Council of Alberta.

Objectives for the City in its Relationship to the Region 1.

The mining of other mineral resources of the regionâ&#x20AC;&#x201D;such as lead, zinc, silver, gold, copper

To comprehend the nature of the region and its relationship to the City as the regional centre.

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To maintain an awareness of activities within the region and to play an active role in its development.

To maintain Edmonton as the dominant centre of the region.

To encourage the conservation of the region's resources as well as their wise and careful development.

To encourage exploration, mapping and the dissemination of information on the resource and development potential of the region.

sale trade. Much greater personal contact is evident between the urban area and the surrounding rural municipalities, towns and villages. Many problems are common to all areas within this region, for example, water supply, and, in addition, the activity in one area could affect activity in another, for instance, air pollution. In planning for an efficient use of regional resources, problems that arise from a fragmented local government structure need to be minimized.

REGIONAL PLANNING The Edmonton District (now Regional) Planning Commission was established in 1950. The Commission acted in an advisory capacity until 1957 when major amendments to the Town and Rural Planning Act were legislated giving the Regional Planning Commissions authority to formulate and implement a district plan. The Commission consists of representatives of member municipalities and three Provincial Government Departmentsâ&#x20AC;&#x201D;Agriculture, Education and Highways. At the committee or technical level, representatives of other provincial departments, and local government are invited to participate. The Commission maintains its own staff and operates as outlined under Part I, Regional Planning Commissions, and Part Ill Regional Planning, of The Planning Act.

Principles Upon Which the Objectives may be Achieved 1.

To continue to actively sponsor and participate in regional development conferences, bringing together local, Provincial and Federal agencies and private industry concerned with developing the Edmonton region.

To encourage the extension and improvement of the transportation and communications network to further develop and settle the region.

To encourage the improvement of the interregional transportation network to reduce the cost of transporting regional resources to major domestic and foreign markets.

To safeguard the availability of low cost electric power, natural gas and coal and an ample water supply to ensure continued regional resource and industrial development.

To assist in the search for markets for regional resources.

To actively promote the availability of local services to the region and encourage the development of new services which directly benefit the region.

To encourage industrialization that utilizes the region's bulky raw materials to produce low volume, high value goods, for example, fine paper and other stationery material from kroft paper presently exported from Hinton to world markets.

At present the Edmonton Regional Planning Commission covers 5,000 square miles, extending some 60 miles to the west, 24 miles to the east, 30 miles to the south and 36 miles to the north of Edmonton. Section 91 of The Planning Act requires that the Edmonton General Plan conform to the Regional Plan. Section 91. Any zoning bylaw, development control bylaw, development scheme, general plan, or replotting scheme prepared and adopted or confirmed, and any action taken or powers exercised by council pursuant to Part 4 shall be in conformity with any preliminary plan or any regional plan that is being prepared or has been adopted under this Part and is subject to any conditions or restrictions imposed under this Part.

The first General Plan for the Edmonton Metropolitan Area was drawn by the Commission in 1952. This plan was purely advisory and had no basis for effective control. Major changes of The Provincial Planning Act in 1957 made possible the preparation and adoption of The Preliminary District Plan, Metropolitan Part in 1959. This plan, its regulations and revisions are the basis for effective control of development in the Metropolitan Area of Edmonton.

To encourage the establishment and expansion of industries which contribute to a strong local economic base, for example, an iron and steel complex.

The Edmonton region, as previously defined, is that area in which the City of Edmonton plays a major role as a supplier of goods and services. Within this brood economic region a much smaller "urban centered" region exists which is delineated on the basis of the relationship established by the City's retail rather than its whole-

Objectives of Regional Planning 1. To devise a strategy of growth regarding the direction, sequence and extent of deve-

KEY Major Roads Railroads City Boundary

•• ••••■■

Metropolitan Boundary Edmonton Regional Planning Commission Boundary Urban Settlements

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Airports Rivers and Streams Intermittent Lakes Lakes Predominately Sloughs and Peat Bogs

tO 2500 —

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NORTH

0 1 2 3 4 5 6 7 8 9 10

C=M= SCALE IN MILES

EDMONTON GENERAL PLAN

DWG.

EDMONTON METROPOLITAN AREA AND DISTRICT

EDMONTON REGION, DISTRICT & METROPOLITAN AREA

CHAPTER II

permitted land use classes for the City of Edmonton, St. Albert, and portions of the Counties of Leduc, Strathcona and Stony Plain. This area consists of nearly continuous built-up urban development whose parts are highly interdependent. The satellite communities function primarily as dormitory suburbs, depending on Edmonton to provide many cultural, institutional, educational, commercial, industrial and recreational facilities.

lopment within and around the major urban centre of the region without the impediment of political boundaries. To regulate land use within the region to achieve orderliness in the development pattern. 3.

To provide a guide for the optimum use and development of the region's resources.

To provide the best physical setting for community life in the region by developing the possibilities inherent in the unique landscape, traditions and culture, as well as location and climate.

To place regional growth in a broader framework, facilitating inter-area planning for broader economic or water-shed regions and to co-ordinate regional planning objectives with those of the Province and the Nation.

The Edmonton Metropolitan Area differs quite markedly from Metropolitan Winnipeg or Toronto in that a very high proportion (eightythree percent) of the Edmonton metropolitan population resides within the boundaries of the major city. The need for joint developMent and participation in the planning of land use, roads, utilities and services is, in part, met through the Edmonton Regional Planning Commission. Also, municipal general plans may concern themselves with uses of land outside the boundaries of the municipality preparing the plan. The City of Edmonton con, therefore, effectively participate within the present framework of metropolitan planning.

Principles of Regional Planning 1.

To provide a preliminary regional plan, and eventually a regional plan to govern the inherently regional aspects of land use. In particular, this plan would outline the general urban zone, the agricultural districts, the generators of urban growth such as major industry and highway development, regional parks and the location of new urban areas in the region.

To define the uses of land and buildings permitted within each zone.

To provide within this plan recommendations relating to staging and sequence of development.

Objectives of Metropolitan Planning 1.

To delineate the metropolitan boundary most appropriate for the effective and economic provision of utilities and services.

To maintain within the metropolitan limits an adequate and balanced supply of land for each of the major land usesâ&#x20AC;&#x201D;residential, industrial, commercial and recreational.

3 To plan and develop a unified major road and transit system for the defined Metropolitan Area.

To make proposals relating to road services, public buildings, schools, parks and their location and the reservation of sites. To undertake studies and make appropriate recommendations to ensure the district an adequate supply of unpolluted water and an atmosphere void of undesirable smoke, noxious fumes, gases and particulate matter. Although not primarily concerned with political boundaries and the form of local government the Commission should be concerned that effective control continues to be exercised over metropolitan and regional aspects of planning.

METROPOLITAN PLANNING The Edmonton Regional Planning Commission has completed preliminary plans for a substantial portion of its region. The Metropolitan Part of the Preliminary Regional Plan defines

To distribute residential areas in a manner that will minimize time, cost and inconvenience of the journey to work.

To develop land within the Metropolitan Area in accordance with priorities established on the basis of need and cost of servicing.

To prevent the disorderly extension of urban uses along major arteries beyond the City's boundary.

To maintain, by limited access zoning, the safety and capacity of the highway approaches.

To share in proper measure the cost of providing services which benefit two or more municipalities.

Principles of Metropolitan Planning The land use zones defined below effectively

summarize the manner in which metropolitan planning objectives are attained.

good construction at scenic locations within convenient commuting distances of urban Edmonton, in a manner which will not result in urban concentrations and which will be beyond the areas of urban expansion.

General Urban—to

provide economically serviceable land for the general urban needs of Metropolitan Edmonton. The General Urban Zone is intended to provide sufficient land for a minimum period of five years at the prevailing rate of population growth.

Special Uses—

Airports—uses permitted are those consistent with the use of the area as an airport and are subject to the detailed zoning requirements of the municipality.

Highway commercial development areas, restricted to uses essential to the travelling public, are grouped in specified locations with access by a service road having one entrance and exit. These locations are determined in relation to highway safety and efficiency.

General Industrial—to provide suitable in-

Light and Heavy Industrial Zones—(relevant to industrial development in district towns.)

Metropolitan Recreation—to enable natural parkland and wooded areas along rivers, streams and ravines to be preserved for active and passive recreation and scenic purposes; to encourage the maintenance of continuous open spaces along major drainage channels; and to provide permanent buffers between incompatible land uses.

Trailer Courts are permitted, upon approval by the municipality, in General Urban, Smallholding and Low Density Agricultural Zones.

dustrial land to meet the anticipated manufacturing, industrial, warehouse and storage land needs of Metropolitan Edmonton for a minimum period of fifteen years based on the estimated rates of land occupancy.

Low Density Agricultural Uses—to conserve the natural resources of the area for purposes of primary agricultural production. To prevent the wastage of agricultural land on the metropolitan fringe by premature or scattered subdivision or development.

Agricultural—General Urban Reserve—to reserve those agricultural lands on the periphery of metropolitan development which, by their relationship to existing land uses, to main road system and to the established utility systems will, in time, become suitable for general urban use; and to prevent premature subdivision and development of land that is prospectively suitable for general urban use. The General Urban and Agricultural—General Urban Reserve Zones are intended to provide sufficient land for a minimum of fifteen years at the estimated rate of urban growth. A change from Agricultural—General Urban Reserve to General Urban would be considered as an amendment to the Regional Plan and subject to the required amendment procedure.

Country Residences—to

provide sites for groups of permanent country dwellings of

General Agricultural Zone—areas in the district that are more remote from urban development than those designated as Low Density Agricultural Area are zoned as General Agricultural. This zone is intended to control the subdivision of good agricultural land. In certain cases, in accordance with established county or municipal policy, subdivision of less than 20 acres can be approved without requiring zoning changes by the Commission.

Chapter III

POPULATION AND EMPLOYMENT POPULATION

in Edmonton had declined to 50,000 people. The growth rate during the next 25 years averaged a relatively low 2.7 percent per year, reaching 97,000 in 1942. The discovery of oil in Leduc in 1947 and subsequent discoveries of oil and natural gas in other areas within the region, combined with increased mining activity and the clearing of additional land for agricultural purposes, provided stable employment opportunities and thus stimulated the rapid population increase of the past two decades. In the period 1942 to 1961 the growth rate has averaged a remarkably high 5.8 percent per year.

In the 1965 Fall Census, Edmonton had a population of 371,265 for an area of 85.6 square miles within the City boundary. In common with other urban centres on this continent, Edmonton can anticipate a considerable population increase in the years ahead. Based on patterns of natural increase and net migration it is estimated that by 1981 the City's population should reach 570,000. The median estimate for the Metropolitan Area is 638,000 people by 1981. The effects of the size, age group distribution and other characteristics of this enlarged population on the form of the City are important basic elements of the General Plan. Reliable projections of the future population are necessary if planning for new residential, commercial, industrial and recreational areas is to be effective. Similarly, sound decisions on extensions of roadways, transit facilities, schools, utilities, police stations, fire halls, libraries, playgrounds and other public facilities must be based upon population projections.

Coupled with increased recovery of regional resources there has been a marked decline in the rural farm population. In 1901 three-quarters of Alberta's population resided on farms and in unincorporated rural communities but, by 1941 this had dropped to less than two-thirds. Whereas the total rural population has declined only slightly, the ratio to the total population has decreased substantially as the following table illustrates: POPULATION DISTRIBUTION IN ALBERTA Year

History of Local Population Growth Since the formation of Edmonton as a major settlement at the end of the 19th Century, the population growth pattern has tended to coincide proportionately with periods of economic boom and periods of relative recession.

Rural

Percentage

Urban

Percentage

Total

1951

489,003 52 450,498 48

939,501

1956

487,292 43 635,824 57 1,123,168

1961

480,368 36 851,576 64 1,331,944

The rural farm population, separate from rural non-farm (those resident in isolated communities of less than 1,000 population) has declined during the 1941 to 1961 period from 340,000 to 290,000. From 1951 to 1961 the Province of Alberta had the highest growth rate of any province in Canada with an increase in population of 42 percent and the highest rate of urban increase (89 percent) in Canada. Edmonton's share of the population increase in the Province grew steadily between 1951 and 1961 with a Metropolitan Area growth rate of 91 percent (the second highest in Canada). The rate of increase after 1961, although not as high as in the previous decade, has been a healthy 3.4 percent per year.

The arrival of the Canadian Pacific Railway in 1891, the Canadian Northern Railway in 1901 and the designation of Edmonton as the capital city of Alberta in 1905 were important factors contributing to large inflows of people during the first decade of this century. The expectations of an expanded railway network to the north opened large areas for new settlers, particularly accelerating the growth of population in 1911 and 1912. By 1914, the City population had increased to 72,000 from 3,000 in 1900. The growth rate slowed considerably during the War period as immigration and birth rates declined. In fact, by 1917, the number of residents

from positive net migration (the difference between the numbers moving into and out of an area ). The net flow of migrants has varied from 10,240 in 1956 to 1,613 in 1960, and thus added significantly to the total increase in Edmonton. Net migration was low during the period before and after the depression in the 1930's. After World War II and in the period following the discovery of oil around Edmonton in 1947, the net increase was very high and has tapered off slightly since 1956. This is largely due to the arrival of a stable rather than boom economy and future ebb and flow of migrant population to Edmonton will be contingent on the economic position of the Edmonton area as compared to the remainder of Canada and the world. Certain years may show Edmonton receiving a large portion of its in-migration from the rest of Canada, whereas other years may show a large portion of the in-migration to be directly from foreign countries.

Population Characteristics Natural Increase

Rates of natural increase (births exceeding deaths in the resident population) have been between 20 and 30 per one thousand population in all census years since 1916, with the exception of the years 1931, 1936 and 1941. In the past forty years, the birth rate has varied from a low of 16.7 per 1,000 population in 1936 to 35 per 1,000 population in 1956. The birth rate has since been steadily declining, reaching a rate of 26 per 1,000 population in 1964. The primary cause of this decline is the relatively small ratio of women in the 15 to 24 years age group. The death rate has been steadily decreasing from a rote of approximately 10 per 1,000 population prior to 1940 to 6.3 in 1956 and 5.7 in 1964. The rote of natural increase (births less deaths) has, therefore, declined in the past decode from 29 per 1,000 population in mid 1950's to 20 in 1964. The numbers actually being added to the City's population through natural increase has risen from 1,000 per year In 1941 to 4,000 in 1951 and 7,200 in 1964. Edmonton generally has had a higher birth rate, a lower death rate and thus, a higher rate of natural increase than Alberta or Canada.

Marriage Rates

The relatively small number of males and females in the 15 to 24 year age group has been a significant factor in the recent decline of marriages from a rote of 17.7 per 1,000 population in 1951 to 13.2 in 1956 to the current rate of 8.7. At the same time, Albertans are generally marrying at on earlier age. In 1940, the average ages of brides and grooms at marriage were 24 and 28 years respectively. In 1963 the average age at marriage had declined to 19 years for brides and 21 years for grooms. The portion of the population (aged 15 or more) that is married has also been increasing. In Alberta at present, two-thirds of the males over 15 years and seventenths of the females are married. The average

Total Population Increase

About one-half of Edmonton's population increase in the period 1951 to 1961 resulted

40 -r

35_ / /

DIAG. 2. — TOTAL POPULATION INCREASE — the sum of the natural increase and net migration.

• \\

I /

25-

—•-- TOTAL POPULATION INCREASE --- NET IMMIGRATION — NATURAL INCREASE

15 20 –

THOUSANDS

BI RTHS A ND D EATHS P ER O N ETHOU SAN D RESI DEN TIAL PO PU LATIO N

DIAG. 1. — NATURAL INCREASE — BIRTHS LESS DEATHS.

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family size in Edmonton has moved upward from 3.4 at the time of the 1951 census to 3.7 in 1961. Age Distribution The population pyramids show the age distribution by five year groupings for the City for the years 1921, 1941, 1951 and 1961. The comparative low rate of births during the depression years in the 1930's and the Second World War is now recognized by a constriction of the

pyramid in the 15 to 24 year age groups. Similarly, the rising birth rate since 1945 (the peak

being . reached in 1956) is indicated by the proportionately large number of people presently

in the 0 to 14 year age group. The portion of the population in the 65 years and over group rose from 2.3 percent in 1921 to 7.0 percent in 1951, declining slightly to 6.4 percent in 1961. Ethnic Background In 1961, the ethnic background of the Edmonton Metropolitan Area population was predominantly English, Irish, Scottish and Welsh (45.8 percent) with lesser amounts of people of German (12.3 percent), Ukrainian (11.3 percent), French (6.7 percent), Scandinavian (5.3 percent), Dutch (4.1 percent), Polish (3.8 percent) and others (10.7 percent.)

DIAG. 4 — ETHNIC BACKGROUND — 1961. Edmonton Metropolitan Area. SOURCE: Canada Census 1961 — In the census a person's ethnic group is traced through his father.

Place of Birth By place of birth, 57 percent of the local population was born in Alberta, 20 percent in other provinces, 6.5 percent in the United Kingdom, 13.5 percent in other European countries, 2.5 percent in the United States and 0.5 percent elsewhere.

DIAG. 3 — MARRIAGES RATES. 20

ALBERTA 56.6 0/6 w < 15 — D < ce 0 uJ

< Z < ■-r)

< 5 —

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DIAG. 5 — PLACE OF BIRTH SOURCE: Canada Census 1961.

YEAR

AGE GROUPS

80 & Over

75- 79

111111 111111 11111 1 1 1 111 1111 II

70 74 65 • 69 60 • 64 55 • 59

70- 74 65 - 69 60 - 64 55- 59

•I• NI III II NI III

50 • 54 45- 49 40 • 44

50 - 54 45- 49 40 - 44

_ffi

35 • 39

35- 39

Nol 1•11 N EI la1111 mil MN III NI 1 11 _

30- 34 25 • 29 20 - 24 15 - 19 10.14

25 - 29 20 -24 15 - 19 10 - 14

5- 9

30 - 34

5- 9

0- 4 5

20 MALE

FEMALE

THOUSANDS Of PERSONS

THOUSANDS OF PERSONS

MALE

FEMALE

.1.1 1961 __ incIud.ng Jasper Ploce & Beverly 1981 —

1,4 I

THE CITY OF EDMONTON

HISTORY OF EDMONTON

AGE GROUPS AGE GROUPS 80 & Over

80 & Ner 75 79

75 79

70 74

70. 74

65 • 69

60 -64

60 • 64 55 • 59

55 • 59 50 54

50 54

45 49

45- 49

40- 44

40 44

35 39

35 , 39

30 • 34

30- 34

25 • 29

25 - 29

20 • 24

20 - 24

15 • 19

15 - 19

10- 14

5. 9

0- 4 30

THOUSANDS OF PERSONS

40 50 FEMALE

150

125

100

MALE

1.111. 1961 — D 8 S Boundary

THOUSANDS OF PERSONS

100

125

150

FEMALE

1961

=I 1981 —

I= 1981

METROPOLITAN EDMONTON

PROVINCE OF ALBERTA

EDMONTON GENERAL PLAN

DWG.

POPULATION PYRAMIDS

POPULATION AND EMPLOYMENT

CHAPTER III

ROMAN CATHOLIC 23.3%

ANGLICAN 12.3 %

UNITED CHURCH 31.2%

OTHERS 19.5%

EDMONTON'S POPULATION IS EXPECTED TO INCREASE AT A RATE OF APPROXIMATELY THREE PERCENT PER YEAR.

DIAG 6 â&#x20AC;&#x201D; PREDOMINANT RELIGIOUS DENOMINATIONS. SOURCE: 1961 Canada Census.

Predominant Religions Denominations Religious affiliation is predominately United Church (31.2 percent) and Roman Catholic (23.3 percent) followed by Anglican (12.3 percent) Lutheran (8.6 percent) and Greek Orthodox (5.1 percent) and others (19.5 percent). In proportion to population increase the Roman Catholic and Lutheran Church membership has been rising while that of the United and Anglican Church has been declining.

Present Population Distribution Drawing 3 on page 35 illustrates the extent of urban development for selected years since 1902. Currently sixty-six percent of the population resides north of the North Saskatchewan River. However, in recent years the rate of growth on the south side of the River has exceeded that of the north side.

ST. BASIL'S CHURCH.

As would be expected, the outlying sectors of the City have experienced the most rapid population growth. In contrast, the population has declined in many of the older portions of the City. Families with children predominate in the areas built since 1947 whereas the group over 65 years of age comprises a much larger proportion of the total population resident in areas of older housing. Immigrants to this country and to this City have usually settled in the older districts of Edmonton with a marked concentration immediately northeast of the City centre. Average income is generally higher in the southwest sector of the City, approaching $7,000 yearly in two census tracts. In contrast, average income for families resident in three census tracts northeast of the City Centre is less than $3,000 per year.

death rate, natural increase would account for about 75 percent of the population expansion to 1981. The most variable segment of the population forecast, the rate of net migration, is estimated to equal about 3,000 per year. However, as experience has shown, net migration levels do in fact fluctuate substantially from year to year. Ideally located to serve a vast region yet to be explored for its mineral wealth, Edmonton could experience a rate of growth far beyond the level presently anticipated.

Population Projections Any population projection requires analysis of objective as well as subjective factors. Birth rates, death rates and rates of family formation, for example, can be based on accurate statistical trends capable of explanation. However, the rote of migration from the farms and communities in the region, from other parts of Canada and from other nations cannot be forecasted as easily. Therefore, a periodic review of the assumptions made as to the rate of natural increase and migration is necessary.

The most significant element of the changing age structure is the large increase of people under 29 years of age relative to increase in other age groups. By 1981, the 70 and over age group is also expected to increase at a rate faster than at present.

Based on the best estimates of birth, death and migration rates available, the City of Edmonton 1981 population should range from 540,000 to 600,000 people. For statistical convenience, a median population of 570,000 has been used throughout the Plan.

Future Population Distribution

The Edmonton Metropolitan Area as presently delineated by the Dominion Bureau of Statistics is expected to have a population of 638,000 by 1981. The area within the Edmonton Regional Planning Commission boundaries is expected to have a population of 720,000 people. Population projections beyond 1981 suggest that the Metropolitan Area will reach a population of one million near the year 2000.

The distribution of the 1981 population, indicated on Drawing 5, is as follows: Edmonton 570,000, Sherwood Park 25,500, St. Albert 35,000, rural zones within the Metropolitan Area 7,500, Morinville 1,000, Fort Saskatchewan 10,000, Leduc 14,000, Devon 3,000, Spruce Grove 1,000, Stony Plain 2,500 and the rural area within the region 50,000, giving a total of 720,000 people.

It is expected, of course, that the City growth will depend on both social and economic forces. Given the present birth rate and a slightly lower

The future additional population of Edmonton will probably be housed in new residential areas in the northeast and southwest sectors of the City, as well as in the burgeoning apartment districts in the vicinity of the City Centre. The present gross density of 15 persons per acre for the whole of Edmonton is expected to increase to 16 persons per acre; the gross density of the residential districts in the Central Area is expected to increase from 30 to 80 persons per acre.

PO PULATION IN MILLIONS

DIAG. 7 — POPULATION PROJECTIONS. 100 80 60

—

40 30

c_Ai{. ,!..,,,„,_--.•-_- -•-_-"" – __ —

10 8 6

_--------

-- - - -- - - - -

EMPLOYMENT In 1961 the Edmonton metropolitan labour force numbered 131,576 or 39 percent of the total metropolitan population. Economic base studies undertaken by the Edmonton Regional Planning Commission and employment studies by the Alberta Bureau of Statistics indicate that by 1981 the Metropolitan Area labour force will approximate 254,600 or 38 per cent of the forecasted total local population.

--•

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-- --

1 0.8 0.6

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—

0.4

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•

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The average age of the local labour force in 1961 was 37 years for males and 34 years for females. This is less than the National and Alberta averages of 39 and 36 years respectively. The nature or type of industrial development in Edmonton and the region, and migration to this City (migrants are generally in the younger age groups) most likely account for this differential.

0.3

•

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YEAR

1,000

900H

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POPU LATI ON I NTH OUS ANDS

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600 -

500 -

400

300 -

200 -

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YEAR EDMONTON GENERAL PLAN

DWG

CITY POPULATION 1881 - 2001

POPULATION AND EMPLOYMENT

CHAPTER III

- YEAR 1902

wimpilimmill

1924

III 1947 1965 1981

EDMONTON GENERAL PLAN

URBAN DEVELOPMENT 1902 - 1981 POPULATION AND EMPLOYMENT

DWG

3 CHAPTER III

12,600

KEY PEOPLE PER NET ACRL

rin

1 20 - 30 30 - 40 40 - 60

EDMONTON GENERAL PLAN

DWG.

POPULATION DISTRIBUTION 1965

POPULATION AND EMPLOYMENT

CHAPTER III

KEY PEOPLE PER NET ACRE 17,500 20 - 30 30 - 40 40 - 60 60 - 80 80 plus

EDMONTON GENERAL PLAN

DWG.

POPULATION DISTRIBUTION 1981

POPULATION AND EMPLOYMENT

CHAPTER III

Foreseen is a continued decrease in participation by males and females in the 15 to 24 year age group, males over 65 years of age and increased participation by females in the 40 to 65 age group.

RESOURCES

MANUFACTURING

CONSTRUCTION

The largest labour sector in Edmonton in 1961 was the community, business and personal service industry, employing about 31,000, followed by wholesale and retail trade totalling nearly 28,000 and manufacturing with 17,500. In comparison with other major Canadian cities, Edmonton has relatively fewer people employed in manufacturing and more in almost every other industry. The significant physical resource development programs in the Edmonton region have led to substantial local employment in oil and gas well servicing, petroleum prospecting and services incidental to mining. It should be pointed out that 1981 forecasts of employment by industry were based on 1951 Census data and 1961 Dominion Bureau of Statistics estimates. Subsequently the definitions of industry categories were altered causing significant differences between 1961 estimated and 1961 actual data. Although the total employment picture is not affected, new forecasts of employment by industry are necessary.

TRANSPORTATION

TRADE

FINANCE

COMMUNITY

PUBLIC ADMIN. INDUSTRY UNSPECIFIED

â&#x20AC;˘ in

111111 EDMONTON

MI ELEVEN MAJOR CITIES DIAG. 8 - PERCENTAGE EMPLOYMENT BY INDUSTRY IN EDMONTON AND ELEVEN MAJOR CANADIAN CITIES.

ployment in the construction industry was well above that of the 1961 overage for the nine other major Canadian cities. The anticipated continuation of strong economic and population growth is reflected in the forecasts of construction employment for 1981. The role of Edmonton as a major transportation centre is reflected by relatively greater employment in the transportation industry locally, than in other Canadian cities. With continued population growth in the region, increased resource development, the construction of new and better transportation facilities and expansion in the area served by the City, it is expected that employment in this industry will continue to be on important segment of local employment distribution. Employment in finance, insurance and real estate firms doubled in Edmonton between 1951 and 1961. Although increasing more rapidly than population the percentage of employment in this industry is still lower in Edmonton than in other major Canadian cities as Edmonton lacks head offices of major insurance companies.

THE CLOTHING INDUSTRY ACCOUNTS FOR OVER SIX PERCENT OF MANUFACTURING EMPLOYMENT.

In the past two decades, manufacturing employment (which is examined in greater detail in the Industrial Development Chapter) has been increasing moderately as a percentage of the total local employment. Expansion can be expected in consumer goods industries and resource based secondary manufacturing industries.

The wholesale and retail trade sector is a more significant part of Edmonton's economy than it is for most Canadian cities. The need to service a large hinterland or trade area is especially evident by the relatively higher local employment in wholesale trade activities.

In view of the rapid population and industrial growth in the past, the percentage of local em-

Generally, Edmonton's economy is well diversified. It is certainly more immune than most Canadian cities from national business cycles as transmitted through the manufacturing sector. If a high enough growth rate can be achieved, cyclical employment should not be a major problem. It is, however, quite susceptible to seasonal unemployment and changes in production and prices of agricultural and natural resource products. With the clearing of additional agricultural land and increased resource development, Edmonton can look forward to a period of steady growth over the next two decades.

The presence of the University, vocational schools and other service establishments such as hospitals, engineering and business management services which serve the region account for the relatively high percentage of employment. In addition, since Edmonton is the capital city of the Province of Alberta and the site of armed forces facilities, the percentage of local employment in the public service industries is slightly higher than the average for major Canadian cities. The rate of growth of employment in Local, Provincial and Federal Government sectors should remain fairly constant and increase in proportion to population growth.

Chapter IV

URBAN GROWTH AND LAND USE To accommodate new residential development and new or expanding industrial, commercial, public and institutional uses, additional land will obviously be needed to augment that presently being used for these purposes. The direction and rate of expansion of each of these uses is influenced by many factors. It is the planner's responsibility to recognize these forces and mold or direct them to achieve the physical environment desired.

changes could affect the projected land use patterns, the areas, types of use and directions of growth as outlined in this General Plan need to be periodically reviewed and adjusted.

EXISTING- LANDâ&#x20AC;˘USE PATTERN In addition to economic, social and community values, the influence of existing development can strongly affect future urban growth and land uses. Thus the location of existing residential, commercial, governmental, recreational and industrial land uses limits the number of choices available for the development of adjacent land. For example, the location of industry can severely restrict the availability of adjacent land to non-industrial uses, particularly those of a residential character.

LAND USE DETERMINANTS A basic prerequisite to land use planning is knowledge of the physical factors of the area under study. Topography, subsurface geology, vegetation, soil bearing capacity, water pools and streams, drainage, mine workings and microclimatology are some of the more important factors that must be considered.

The Land Use Map in the m a p pocket is a representation of the manner in which land in the City is presently being used. It provides a base on which the 1981 land use plan can be formulated. This pictorial description of the urban setting will also assist in guiding day to day decisions which depend upon a knowledge of existing land use.

Secondly, the shape of the urban land use pattern is influenced by the economics of utility extension, the cost of land and the timeâ&#x20AC;&#x201D;distance factor for travel to other parts of the Metropolitan Area. Complexly related to these physiographic and economic determinants of land use are those of social origin. Preferences for certain types of residential accommodations or preferences in the location of community facilities such as churches and shopping facilities can differ between communities. An appreciation of local customs, beliefs, traditions and cultural biases is therefore required.

PROPOSED. URBAN GROWTH- AND LAND USE PATTERN Objectives

The final force in land use determination is that of public interest. Through legal power from the local and provincial governing agencies, the public should receive protection from accident hazards, disease, noise and pollution. Adequate daylight, sunshine; privacy and opportunities for normal family and. community life need to be safeguarded and, finally an aesthetically stimulating environment should be maintained. Economic and social values are constantly changing and, consequently, the physical plant in some areas can become obsolete. Since these

To plan for an imrriediate urban area to accommodate 540,000 to 600,000 people by 1981, and for o Metropolitan Area of 600,000 to 670,000 people by 1981.

To allow for the long range expansion of the Metropolitan Area to approximately a million population by the year 2000.

To consider those changes in population characteristics as they affect the planning and development of the City.

To provide a plan for the orderly and economic growth and renewal of the City consistent with the need of providing the best possible living, working, shopping and recreational environment.

To provide sufficient area for every land use as required by growth anticipated during the Plan period.

(a)

To provide an internal arrangement of land uses consistent with the needs of the neighbourhood, community and region,

in convenient proximity to work and leisure-time areas with adequate transit and roadway facilities.

(b)

To eliminate existing conflicts and avoid future conflicts between incompatible land uses.

in areas protected from through traffic and incompatible non-residential uses.

(c)

To provide as wide a choice of land for development as possible, while still maintaining compact orderly development.

in areas which can be cleared and serviced economically yet which are conducive to attractive development.

(d)

in various locations to ensure sufficient choice of site and density.

10.

bourhood servicesâ&#x20AC;&#x201D;local stores, playgrounds and elementary schoolsâ&#x20AC;&#x201D;should be located:

3. The location criteria of leisure-time areas, defined as the major cultural and recreational facilities of the City, include:

To provide a plan whereby development can be efficiently programmed in order to co-ordinate the provision of all public services and utilities in the most orderly and economic manner.

(a)

convenient proximity to living areas.

(b)

major parks and large open spaces should (to the extent possible) be located so as to take advantage of natural features such as ravines, valleys and treed areas. Land not suitable for other urban purposes can very often be most appropriate for park and open space use.

(c)

cultural and spectator sport facilities usually require a reasonably central location with transit and thoroughfare access from all parts of the City.

To co-ordinate the arrangement of land uses with the circulation routes to ensure an efficient movement of people and goods within the City and to and from the City.

1 1 . To provide a City-wide land use plan which will be a useful guide to the general public, developers and all levels of government.

Principles Although many different land use categories can be differentiated, there ore perhaps four major land use divisions: work areas, living areas, leisure time or play areas and the area needed for the movement of people and goods.

DIAG. 1 - FUTURE LAND REQUIREMENTS 1965 - 1981. 11,500 ACRES

7,300 ACRES

The principles as to the location of each are summarized below: 1. Work areas, consisting of those parts of the City devoted to manufacturing, trade and services should be located: (a)

in convenient proximity to living areas with interconnecting transit and thoroughfare routes nearby to insure easy access.

(b)

in convenient proximity to other work areas where uses in one area are accessory to uses in another.

(c)

to ensure that some work areas have accessibility to heavy transportation facilities and large capacity utility services.

(d)

in areas which can provide sites of adequate size, conducive to economic development and properly situated for the particular uses intended.

RESIDENTIAL 61%

2. The living areas, defined here as the residential communities including the neigh-

1111

INDUSTRIAL 39%

. ,1 10 111 2000

401 111 10 0 11

KEY CENTRAL AREA INDUSTRIAL RESIDENTIAL RIVER VALLEY

AGRICULTURAL

OF 4) ieir

EDMONTON GENERAL PLAN

DWG.

URBAN GROWTH SECTORS

URBAN GROWTH AND LAND USE

somewhat the expansion of the City in that direction. Sectors 3 and 9, extended beyond the City boundary, illustrate the expansion of Sherwood Park and St. Albert. As a general policy, a greenbelt area providing space for large institutional and recreational uses has been provided to separate urban uses in Edmonton from those in the satellite communities. Industrial expansion should be confined to Sectors 4, 8, 9 and 10 except where residential expansion is already designated in Sherwood Park and St. Albert. Expansion beyond 1981 to the year 2000 is also mapped giving some indication of the type of urban pattern that could be expected by that time.

4. Transportation facilities, often requiring as much as one-third of the total urban land area, must be provided to give access to individual properties as well as accommodate traffic generated between land uses.

2 limits

THE 1981 LAND USE PLAN Given the expected population and employment increases to 1981 and the densities of the respective developments, the number of acres needed to accommodate these increases can be calculated. The following table lists the amount of land area presently occupied and land needed for development by 1981:

Finally, the 1981 Land Use Plan includes, in addition to a more definitive demarcation of land use types and boundaries than in the schematic plan, the major thoroughfare proposals for the City.* This plan is a vital part of the General Plan document and illustrates many of the objectives, principles and standards â&#x20AC;˘ expressed herein. It may be made binding and legal in so far as directions of growth, area, density and intensity of development are concerned. The Land Use Plan is a guide in formulating zoning, subdivision, urban renewal and other planning decisions. It also gives some indication as to which areas might be acquired for roadways, transit, schools, parks and public buildings. Finally, it is an invaluable guide to the residents of this community regarding the direction of growth, the provision of services and the location of the various land uses. Pursuant to Section 97 of the Planning Act, land uses shown outside the City boundary are subject to the approval of the rural municipalities in which they are contained.

LAND USEâ&#x20AC;&#x201D;NET ACRES CITY OF EDMONTON (1965 BOUNDARY) Residential Commercial Public & Semi-Public Industrial & Railway Streets & Lanes ___. Total

1961 10,000 1,600 7,200 2,800 9,500 31,100

Percentage 32.2 5.1 23.2 9.0 30.5 100.0

1981 Percentage 17,000 32.6 2,600 5.0 11,600 22.2 6,700* 12.8 14,300 27.4 52,200 100.0

*Does not include 1,800 acres of Industrial Reserve in the southeast area.

Based on the goals and principles of growth and land use development expressed previously, o general urban expansion pattern can be formulated. Isolation of the various expansion areas is achieved by dividing the City into 10 pie-shaped sectors, thereby permitting discussion of each area. In general, residential expansion would be most suitable in areas adjacent to the River Valley. These areas are delineated in the Urban Growth Sector Map as Sectors 1, 2, 5, 6 and 7. The proximity of the Namao Airport in Sector

*Under the Freeway Program, some portions of this freeway system may in fact be constructed after 1981.

Chapter V

RESIDENTIAL DEVELOPMENT INTRODUCTION

Apt.

In terms of area, residential development is the most significant of urban land uses, occupying, at present, some sixty percent of Edmonton's built-up area. The great increase in population since World War II has created considerable suburban expansion, largely in the form of single family dwellings, and only since 1961 has a significant trend toward Central Area high density apartments occurred.

H. R.

Under six storeys and containing four units or more. Six storeys and over.

Other: Converted dwellings containing more than two rooms or apartments, dwellings attached to commercial structures, trailers and institutions, etc. The majority of housing units are of the single family type; however, since 1961 there has been an increasing trend toward multi-unit construction. The older and more central area consists of walk-up apartments, converted housing and, more recently, high-rise apartments. New areas are still predominantly single family in character with apartments located near shopping centres and transportation routes.

Suburban growth in Edmonton since 1949 has developed on the neighbourhood unit principle. Within the neighbourhood, playgrounds, schools, churches and other services to meet the day-to-day needs of the residents are provided. Elementary schools, which usually form the nuclei- of the neighbourhoods, are located to keep walking distances to a minimum and to avoid the need for small children to cross busy traffic arteries.

It is expected that of the population increase of 255,000 between 1961 and 1981, 216,000 will be accommodated in new suburbs within the

DWELLING UNIT TYPES AND LAND REQUIREMENTS Residential Units Year

1961* Percentage 1981 Percentage

2. F.

Row

55,300 63.2 94,000 56.2

15,500 17.7 19,000 11.4

2,500 2.9 5,000 3.0

8,500 85.0 14,900 84.7

1,000 10.0 1,400 8.0

150 1.5 300 1.7

S. F.

Apt.

Total

H. R.

Other

10200 800 11.7 .9 32,000 14,000 19.2 8.4

3,200 3.6 3,000 1.8

87,500 100.0 167,000 100.0

200 2.0 200 1.1

10,000 100.0 17,600 100.0

Net Residential Acreage 1961* Percentage 1981 Percentage

140 1.4 700 4.0

10 0.1 100 0.6

*1961 figures include Jasper Place and Beverly

HOUSING INVENTORY

City, and 39,000 in existing built-up areas. Although multi-family dwellings will not occupy any greater proportion of total residential land, the number of multi-family units is expected to increase as a portion of total dwelling units.

For an analysis of existing conditions and future requirements, the various types of housing accommodation are classified into the following categories: Detached single family units. S. F. Duplexes, basement suites and other 2. F. converted two family dwellings. Terraced dwellings of three or more Row semi-detached units.

Data for new residential construction in recent years indicates a trend towards more apartments, especially high density high-rise structures. The ratio between single family and apartment dwelling unit construction per year

4,000 T

verted type of dwelling located in the central and older areas of the City will generally be replaced by new apartment construction. This transition area, containing converted dwellings, is expected to move outwards, but to a lesser degree, due to the absence of large two and three storey houses beyond the Central Area.

DWELL ING UN ITS

3.000

2,000

1.000

0°00

le 1,1 1 1

DENSITY DISTRIBUTION-1981 Expected population densities may be grouped into four different areas.

Low Density—up to 40 people per net acre. This category generally consists of single family dwellings and occupies the major portion of the land area devoted to residential use. These areas are located in the newer neighbourhoods near the periphery of urban development and consist of single family dwellings with minor apartment concentrations near transportation, commercial and employment centres.

YEAR

APARTMENT DWELLINGS SINGLE AND TWO FAMILY DWELLINGS

DIAG. 1 — ANNUAL DWELLING UNIT CONSTRUCTION IN EDMONTON

has changed from 90 percent single family and 10 percent apartment prior to 1961 to 60 percent and 40 percent respectively at present. It is anticipated that construction of these two types of dwelling units will be equal in the near future. As of 1965, there were some 40 high-rise structures in Edmonton, totalling 4,000 units, ranging in size from 40 to 300 units each. It is anticipated that by 1981 there will be a total of 14,000 such units, in other words, one-third of new apartment construction will consist of high-rise units. The "other" type of residential units are expected to decrease slightly because the conTERRACED HOUSING. These units provide many amenities of single family dwellings at higher densities.

LOW DENSITY SINGLE FAMILY HOUSING.

Intermediate Density—up to 90 persons per acre. It consists of a combination of converted dwellings, walk-up apartments and single family units. This area, in transition from single family to converted dwellings and apartments, is located within the outer ring of low density housing.

731 • • • • • ."1

Medium Density—up to 150 persons per acre. These areas, adjacent, for example, to the Central Area, the southside commercial district and the University of Alberta, consist primarily of walk-up apartments with some high-rise apartment developments.

modation to higher density development is shown in the above table. Objectives for Residential Development 1.

The needs of people are diverse, and their social, cultural and economic situations differ vastly. This must be accepted and planned for, so that every sector of the population is provided with the opportunity to have suitable accommodation.

To create in the suburbs, by the physical development of land, socially integrated communities, within which may be enjoyed the highest standards of safety, health, convenience and privacy. To continue the creation of neighbourhood units in which the day-to-day needs of the residents may be satisfied, but with increased attention to aesthetics to relieve the sometimes visually sterile appearance of suburban development.

Redevelopment in the older residential districts should proceed on a comprehensive basis.

To ensure that suburban expansion takes place in the most orderly and economic manner, so that investment and maintenance costs are kept at a minimum.

To prevent the intrusion of incompatible uses which would adversely affect the health and amenities of the district, or otherwise seriously interfere with the maintenance of property values.

AN ATTRACTIVE WALK-UP APARTMENT IN A MEDIUM DENSITY RESIDENTIAL DISTRICT.

High Density—up to 300 persons per acre. This category is adjacent to the central business district and consists primarily of highrise apartment structures.

DIAG. 2 — CITY RESIDENTIAL DEVELOPMENT 1951 - 1981.

180 7

WEST END HIGH DENSITY APARTMENT DISTRICT,

2, 160 n

Low Intermediate Medium High TOTAL __________

No. of People

1961 Percentage

205,000 65.0 104,000 33.0 1.4 4,000 2,000 0.6 315,000 100.0

No. of People

0.0.15

120

POPULATION DISTRIBUTION BY DENSITY AREA Density

••••••

140 4. INCLUDING JASPER PLACE AND BEVERLY

—

1981

INGLE & TNO AtAlLN UNITS

100 80

Percentage

345,000 60.5 165,000 29.0 25,000 4.5 6.0 35,000 570,000 100.0

tat- WW1. 20

eq LO ON

SO ON

The trend for provision of residential accom-

YEAR

.-4

teN

Lf)

ON CO

ON r—I

ON 8-1

1-1

KEY LOW DENSITY - PREDOMINANTLY

I-1 SINGLE FAMILY RESIDENTIAL - UP TO 40 PERSONS PER ACRE

LOW-MEDIUM DENSITY WITH Es CONVERTED DWELLING & SOME SMALLER APARTMENTS - UP TO 90 PERSONS PER ACRE

MEDIUM DENSITY - UP TO 150 PERSONS PER ACRE

HIGH DENSITY - UP TO 300 PERSONS PER ACRE

EDMONTON GENERAL PLAN

DWG.

RESIDENTIAL DENSITY BY AREA

RESIDENTIAL DEVELOPMENT

CHAPTER V

Principles for Residential Development

DENSITY INCREASES FROM PERIPHERY TO CITY CENTRE

Careful study must be given to the design of each new neighbourhood in relation to the next, and to the convenient grouping of neighbourhoods into residential districts.

In the design of new residential areas consideration should be given to the provision of o greater variety of lot sizes.

The internal street pattern of a neighbourhood should provide efficient access to all ports of the neighbourhood. Non-local or through traffic should be eliminated in order to create a quiet and safe environment.

Heavy traffic routes adjacent to residential districts or separating neighbourhoods must be adequately buffered to protect the residential amenities. In this regard, a substantial increase is necessary in the width of buffer strip and the intensity of landscaping over that presently provided. Roadway cost estimates should make provision for these protective facilities as they are vital if the roadways are not to become principal causes of blight and shifting land values in the residential districts.

Utility alignments should ensure maximum economy without unnecessarily inhibiting imaginative neighbourhood design. Power and telephone lines should be underground in all residential districts.

To minimize the hazards of on-street parking in quiet housing areas by encouraging laneless subdivisions which necessitate front-drive garages unless, for some specific reason, it can be shown in a particular area that laneless subdivisions are uneconomical or otherwise undesirable.

Greater emphasis should be given to planning for the pedestrian in relation to the school and park systems, local shopping centres, bus routes, etc. Paved walkways should be constructed and, where necessary, pedestrian overpasses provided for

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MEDIUM-HIGH DENSITIES AT EMPLOYMENT, COMMERCIAL AND TRANSPORTATION CENTRES

DIAG. 3 — DESIRED RESIDENTIAL DENSITY PATTERN.

•

HIGH DENSITY

•

MEDIUM DENSITY LOW DENSITY WITH APARTMENTS

DENSITY RELATED TO EMPLOYMENT CENTRES AND TRANSPORTATION FACILITIES

0 LOW DENSITY PREDOMINANTLY SINGLE FAMILY

I LOW DENSITY RESIDENTIAL MEDIUM DENSITY RESIDENTIAL

1-1 PROPOSED CHURCH SITE

COMMERCIAL PARKS, OPEN SPACE METROPOLITAN RECREATION

EDMONTON GENERAL PLAN

DWG.

NEIGHBOURHOOD PLANNING

RESIDENTIAL DEVELOPMENT

CHAPTER V

safety and convenience if a major roadway is adjacent to pedestrian generating land uses. To minimize costs of extension of utility lines and provision of garbage collection, police and fire protection, street cleaning and snow clearing services; it is important that residential expansion be based upon an orderly and economical staging program, but without inhibiting healthy competition

NEIGHBOURHOOD

.•••

in the house building industry.

am.

Large barren areas of single storey houses have little aesthetic appeal, and, therefore, every effort should be made to encourage substantial street landscaping and take advantage of natural topographic features. The River Valley and ravines should be visually integrated with and accessible from the adjacent neighbourhoods and their aesthetic and recreational values made available to the whole community.

COMMUNITY

10.

House groupings, as a form of creating a physical and social unit at on human scale should be introduced wherever possible by the use of culs-de-sac, small public landscaped areas, etc.

11.

In order to improve the quality of apartment areas, detailed studies of the following aspects of apartment standards should be undertaken:

DISTRICT DIAG. 4 - THE NEIGHBOURHOOD IN RELATION TO THE COMMUNITY AND THE DISTRICT.

DIAG. 6 - IMPROVEMENTS IN DAYLIGHTING BY CAREFUL SITING.

DIAG. 5 - BUFFERING RESIDENTIAL AREAS FROM MAJOR ROADWAYS.

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8 STOREY BUILDINGS IN PARALLEL ROWS WITH STAGGERED GAPS (DAYLIGHTING PER PERSON 10% BETTER THAN A)

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MAJ ORR O AD

PRO PERTY L INE

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8 STOREY BUILDINGS IN BROKEN CRUCIFORM LAYOUT (DAYLIGHTING PER PERSON 15% BETER THAN A)

c, v,

COMBINATION OF 8 AND 4 STOREY BUILDINGS IN BROKEN CRUCIFORM LAYOUT (DAYLIGHTING PER PERSON 35% BETTER THAN A)

r] L-

E-

I I I I

EXISTING "PERMANENT" BUILDINGS

DESIRABLE APARTMENT SITING

STANDARD APARTMENT SITING

EXISTING "NON-PERMAMENT" BUILDINGS

DIAG 7 - APARTMENT DEVELOPMENT

(a)

the most appropriate limitations on maximum density based on good living conditions, adequate services and tolerable traffic conditions.

(b)

the desirability of flexible setbacks to obtain the best use of the lot and the least harm to surrounding development.

(c)

siting for the best use of sun, air, wind, views, openness and privacy.

(d)

means for achieving a pleasant architectural appearance.

(e)

maximizing landscaped open space.

(f)

provisions of more attractive screening for parking areas or construction of multi-level parking, preferably underground.

The Planning Act) could be used to ensure the most orderly and economic redevelopment to prevent the wasteful creation of isolated lots and to relate the major structures to each other for an harmonious and desirable residential environment.

12. Redevelopment in older residential districts has generally occurred since 1960 in the form of walk-up and high-rise apartment development. This has, to a large extent, occurred on a piecemeal basis, with little regard for the overall visual form of the district. If any significant improvement is to be achieved the redevelopment of larger areas must be encouraged and design plans prepared whereby the development of a district could be programmed for some years to come. If necessary, the development scheme procedure (Sections 114 to 117 of

13.

The maintenance of high standards for active recreational areas in suburbs has deterred the provision of passive recreational areas on even a modest scale. The reintroduction of amenity parks of one-half acre to one acre in area is considered essential to provide relief from the otherwise uninterrupted housing mass.

14.

The adequacy of existing public open space in areas of older housing and areas with increasing density due to apartment development requires examination in detail.

15.

The proposed name of every residential area, street, school or other facility should not be duplicated nor should it approximate phonetically the name of any other area, street or facility already named. The name should have some significance to Edmonton and its past.

16.

Zoning of residential land should be based on a periodic assessment of the demand for various types of housing accommodation.

Chapter VI

COMMERCIAL DEVELOPMENT

INTRODUCTION

of the total developed area. By 1981, the needs are expected to equal about 2,600 acres or about 5 percent. Basically, such factors as an increased population, increased personal income, increased sales competition and a wider and better selection of goods and services has and should in the future contribute to maintaining the demand for commercial property throughout the City.

Commercial development is strongly competitive and more sensitive to a wider variety of factors within the local economy than most land uses. The location of a commercial activity often means the difference between its success and failure. In the early stages of City growth, various commercial enterprises obtained choice central locations downtown and near centres of activity on busy traffic routes. Retail stores and hotels located where pedestrian traffic was highest while offices located above stores, in industrial and warehouse buildings or in separate office buildings near the central retail area.

By 1981, the Central Area is expected to contain about 55 percent of the commercial employment in primary retail outlets (comparative shopping) within the Metropolitan Area. Secondary commercial employment (includes convenience shopping, entertainment and commercial recreation) is expected to locate in areas of dense population. Government and commercial office employment is expected to locate largely in the Central Area. Warehousing and storage facilities should be encouraged to locate in the wholesale distribution district or in industrial areas.

Whereas retail trade continues to be the dominant activity and land user downtown, emphasis has changed and downtown has become a centre for carrying on professional and administrative business. Various factors account for this trend. Firstly, new companies establishing offices in Edmonton have located near the greatest activity centres with the advantage of serving the metropolitan population from a central location. Secondly, companies which formerly located in older and functionally obsolete buildings realized that to compete with the newly establishing companies, it was necessary to locate in prestige locations near the centre of activity. Thus a tremendous demand for modern downtown office space was created. In the future, the most dominant form of downtown development is expected to be the large office and/or apartment building with space for diversified commercial activities on the lower floors.

With the advent of the automobile, commercial development has been following a trend geared primarily towards facilitating the consumer and his automobile. Perhaps the most revolutionary and significant user of commercial land in the previous ten years has been the multi-purpose planned shopping centre and supermarket. These centres sprang up as the main traffic routes developed and this led to the allocation of large areas for commercial uses. They have reached a high level of development becoming the dominant distributors of food and goods, to a large extent replacing isolated neighbourhood stores and generally supplementing downtown activity. The location of shopping centres on major thoroughfares is a vital factor in their successful operation. Customer convenience, time-saving advantages, the provision of easy accessibility and ample free parking are the reasons behind the success of these centres. The development of planned shopping centres and supermarkets is continuing to increase rapidly and this trend is expected to continue.

Rapid increases, somewhat comparable to past increases, are expected in every phase of commercial development, particularly in retail, office and hotel development. Retail sales in the Edmonton area increased from 285 million dollars in 1954 to 453 million dollars in 1964; an increase of 168 million dollars or 59 percent. In the same period, the population of the trading area of Edmonton increased from 482,000 to 715,000 or over 48 percent. In 1961, net commercial development occupied 1,600 acres (including Jasper Place and Beverly) or 5.1 percent

Shopping centres in new areas should be

designed as part of the planned neighbourhood or community. Older deteriorated strip commercial development will require special attention in order to operate on a more efficient and competitive basis. Downtown commercial development should continue to expand and serve the entire City and its region. Commercial activity in the Central Area will be strongly influenced by economic activity throughout the region.

Objectives for Commercial Development 1.

To provide a commercial pattern that will recognize the importance of the central business district retaining its dominant role, providing the most comprehensive and varied commercial services.

DIAG. 1 - TO MINIMIZE CONFLICTS BETWEEN RESIDENTIAL AND COMMERCIAL USES, BUFFER STRIPS SHOULD BE INTRODUCED.

To provide a systematic and orderly pattern of commercial development that will adequately serve the anticipated population increase and distribution.

To encourage healthy, attractive and economical commercial development through the application of sound planning principles so that investments and commercial property values are protected in the public and private interest.

To protect residential neighbourhoods and other land uses from the intrusion of undesirable commercial uses and to avoid serious conflict of these land uses.

To improve the traffic capacities and safety features of major streets through the careful location and grouping of commercial land uses.

To encourage the rehabilitation and revitalization of potentially healthy commercial areas that have deteriorated.

To avoid designating excessively large or scattered land areas, or poorly located sites for commercial use.

4 A variety of land uses should be integrated with new shopping centre designs. These uses may include cultural, park and recreation, educational, governmental and residential as well as other facilities which can be sited harmoniously and compactly together in the same unit for economy and convenience. This should improve the viability of the centre and provide the neighbourhood or community with a more clearly defined focus or centre for a wide variety of community functions.

Principles for Commercial Development 1.

Adequate commercial land of a suitable size and location should be provided to develop a full range of commercial development to meet the varied consumer needs of the population by 1981 and beyond.

Commercial development should be integrated visually and functionally with the residential area in which it is located. Access, screening, landscaping and general performance standards should be utilized to create compatible, harmonious development.

Scattered commercial uses in residential neighbourhoods and strip commercial development along arterials should be discouraged in favour of a comprehensively planned, nucleated development. Existing facilities of this kind in a deteriorated state should be redeveloped or relocated to correspond with the basic principles of desirable commercial development.

Shopping centres should be designed so that parking areas are conveniently accessible to the retail outlets and provisions made for a high level of convenience to the pedestrian.

Shopping centres should be as accessible as possible from the areas they serve. For example, centres may be located at the intersection of minor arterials so as to serve two to four neighbourhoods. Regional centres should be located at junctions of major arterials in a manner to serve one or more residential communities.

7 Traffic safety can be assured by: locating and designing commercial development near major access routes; creating minimum conflict with through traffic; providing adequate

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CENTRAL BUSINESS DISTRICT PLANNED REGIONAL SHOPPING CENTRES

•

• •

A•

• • •

•

• •

• ■11.

PLANNED DISTRICT SHOPPING CENTRES

PLANNED NEIGHBOURHOOD SHOPPING CENTRES STRIP COMMERCIAL DEVELOPMENT

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EXISTING COMMERCIAL DEVELOPMENT

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PLANNED DISTRICT SHOPPING CENTRES PLANNED NEIGHBOURHOOD SHOPPING CENTRES

STRIP COMMERCIAL DEVELOPMENT

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ANTICIPATED COMMERCIAL DEVELOPMENT — 1981 EDMONTON GENERAL PLAN

DWG

EXISTING AND ANTICIPATED COMMERCIAL DEVELOPMENT

COMMERCIAL DEVELOPMENT

CHAPTER VI

off-street parking, loading and unloading areas; and by avoiding vehicular and pedestrian traffic conflicts. 8. Applications for commercial development in excess of planned outlets should be required to justify the additional need in order that the excesses of land speculaton can be avoided. In this regard, an applicant should give evidence of the following: (a) (b)

(c)

(d)

(e)

convenient accessibility to the site from its trading area. inadequacies of existing and planned facilities through studies of growth potential as shown by zoning plans, retail building plans, income levels and trends and utility plans. well established or successful businesses or other generators near or adjacent to the proposed site. that the development will not adversely interfere with existing or future traffic, patterns. the developer's capability to proceed with the proposed development.

THE CENTRAL BUSINESS DISTRICT. The downtown wholesale district can be seen in the background.

commercial activity is planned for accordingly. This is in contrast to trends in many other cities where downtown areas have been seriously affected by the decentralization of commercial facilities. To avoid this happening in Edmonton, it is necessary to strengthen downtown commercial growth, by implementing the policies outlined in the Central Area Chapter.

9. The central business district should be recognized and strengthened as a centre for retail, office, business and recreational facilities by improving public transportation, access, circulation and parking. Encouraging new high density housing near the downtown would also increase demand for the retail goods and business services located here.

Access to the downtown retail core is of major importance for its successful operation. Major access to and from this area is to be provided by way of a freeway loop joining the downtown roadway system to the major freeways and the Provincial highways beyond. Provision for long-term parking near the downtown freeway loop should discourage parking and reduce congestion in the core retail area. Short-term parking within the downtown freeway loop will provide a rapid turnover of stalls for patrons using the retail services. Ultimately, a sophisticated rapid transit system will become necessary to enable large numbers of people to journey to and from the retail core. A planned system of elevated and underground pedestrian walkways could make the entire core retail area accessible by foot. A more detailed discussion of these policies and plans are provided in the Central Area and the Transportation Chapters.

TYPES OF COMMERCIAL DEVELOPMENT By 1981 the commercial use types will broadly consist of the central business district, regional shopping centres, district shopping centres, neighbourhood shopping centres, strip commercial development, highway service centres and isolated stores.

The Central Business District The central business district is the dominant commercial type in Edmonton. Here the greatest concentration of commercial and office development is reflected by the highest land values, the tallest buildings and the maximum concentration of vehicular and pedestrian movement. Because of its dominance in business and finance facilities, professional services, specialized shopping and other activities, the central business district is the focus of the Central Area, the City and the region. A downtown store or office will service not only people going downtown specifically to shop, but also those going to work or to meet friends.

Planned Shopping Centres A planned shopping centre is a group of commercial establishments, designed, developed, owned and managed as a unit with adequate off-street parking provided on the site. It is related in its location, size and type of shops

The 1961 downtown employment total is expected to double by 1981 and this increase in

Regional Shopping Centres

CUSTOMER

Regional shopping centres provide retail and some limited office space serving major segments of the City. They characteristically contain one or more department stores as the major drawing power, a number of comparison shops and a variety of other commercial establishments. Regional centres, commonly one-owner developments, serve a trade area from 30,000 to 100,000 persons. The site area for a regional shopping centre is usually 20 acres or more, with a floor space area of 200,000 square feet. In Edmonton, there are presently six regional shopping centres: Westmount, Bonnie Doon, Meadowlark Park, Park Plaza, Northgate and Capilano Plaza. By 1981, it is probable that three more centres will have developed: the proposed Woodword's centre in southwest Edmonton, one at the west limits of Edmonton, adjacent to Stony Plain Road and a third in the northeast residential sector.

PARKING;

SERVICEL ACCESS I -

VERTICAL SEPARATION OF TRAFFIC IN SHOPPING CENTRES

PEDESTRIAN LEVEL .....

•• ROADWAY

•-• -RAPID TRANSIT

VERTICAL SEPARATION OF TRAFFIC FOR DOWNTOWN

DIAG. 2 — VERTICAL SEPARATION OF TRAFFIC IN SHOPPING CENTRES AND THE DOWNTOWN.

Regional shopping centres are generally located at intersections of major arterials, expressways or freeways because of the importance of accessibility. The location of centres and their

to the trade area which the unit serves. It is sometimes grouped with other community facilities for greater convenience and economy.

WESTMOUNT. Regional shopping centres serve large segments of the City and are best located at major intersections.

Good site selection and shopping centre design should provide safe, easy, internal pedestrian circulation and convenient vehicular access to major thoroughfares in conjunction with adequate loading and unloading areas well separated from customer parking. The floor area ratio is a useful indicator of sound shopping centre development. Floor area ratio is the relationship of the total floor space of buildings to the site area. The ratio should not be greater than 0.35; that is, 35 square feet of floor area for each 100 square feet of lot area. However, the ratio could increase to 0.50 in multi-storey buildings or centres with a larger percentage of office space. This minimum standard permits the shopping centre to provide adequate space for retail outlets, parking and traffic circulation. In Edmonton, about 60 percent of the neighbourhood and district shopping centres and 100 percent of the regional centres have a floor area ratio less than 0.35. It is anticipated that the use of underground and multi-level parking facilities will increase at regional centres and consequently these minimum site area ratios will vary. The more spacious type of site development will tend to continue throughout the Plan period within suburban areas. Parking facilities at commercial centres should be planned to handle peak loads in an average week. Much greater emphasis should be given by developers to "humanizing" these vast parking areas by imaginative layout, screening and planning.

individual functions should be related to the convenience and time-saving advantages to their customers. Convenience of location should be stressed in Edmonton's case since 'Edmonton serves a very large region and shoppers coming in must find these shopping areas easily accessible and complete.

__ ..14.544a7 .

agt=itio

District Shopping Centres District shopping centres generally serve about three to four neighbourhoods or a trade area population of 10,000 to 20,000. The leading tenant is usually a large supermarket with perhaps a bowling alley, a clothing store or real-estate or insurance office in addition to a drug store, beauty parlor or other retail establishments common in neighbourhood centres. The site area for a district shopping centre is usually 3 to 10 acres with a floor space area of 30,000 to 100,000 square feet. An appropriate location for a centre of this size would be on a major arterial or at the intersection of major arterials.

THE CAPILANO DISTRICT SHOPPING CENTRE IS LOCATED AT THE INTERSECTION OF MAJOR ARTERIALS.

TOWER NEIGHBOURHOOD SHOPPING CENTRE.

Neighbourhood Shopping Centres Neighbourhood shopping centres are used for convenience shopping and specialized personal services by nearby residents and passing motorists. Small centres generally include grocery stores, drug stores, a service station and other small shops. In common with larger planned shopping centres, off-street parking and offstreet loading facilities are provided. These centres may be under single or multiple ownership. The most favourable locations are at intersections of arterial or collector streets on the periphery of a neighbourhood. The site areas are usually less than 3 acres with a floor space of up to 30,000 square feet. The trade area is approximately the neighbourhood in which the centre is located or a trade area population of 3,000 to 10,000 people. Strip Commercial Development and Highway Service Centres Early commercial development in Edmonton consisted of diversified retail and commercial facilities stretching along both sides of major traffic thoroughfares or in small clusters on

in Edmonton, these isolated establishments perform a useful function to their customers.

REVITALIZING STRIP COMMERCIAL AREAS OUTSIDE DOWNTOWN Introduction Originally strip commercial growth evolved along major transportation routes, transit lines or at the intersection of major streets. The increased utilization of the automobile made the population considerably more mobile and dispersed and less dependent on commercial facilities near main transit routes. The absence of adequate parking, accessibility, compactness along the strips and the construction of the all purpose shopping plazas has led to the decline of strip commercial areas as major service centres. The succeeding section outlines techniques and improvements that could be implemented to strengthen strip commercial areas.

118th AVENUE - STRIP COMMERCIAL.

street corners. Some are an outgrowth of early independent community development catering to the daily needs of the people living nearby, such as Whyte Avenue in South Edmonton, Stony Plain Road in Jasper Place, 118th Avenue and the Fort Trail in North Edmonton. Other strip or ribbon development resulted from the location of early streetcar lines along 101st Street, 97th Street, 111th Avenue and 124th Street. Strip commercial areas usually stretch along congested centres carrying through traffic. Inadequate parking, poor accessibility, the distance the pedestrian-shopper must walk to do his shopping and poor appearance contribute to a decline in their relative importance to the convenience shopper.

Techniques and Principles for Improving Strip Commercial Areas

In addition to strip development within the City, additional highway service centres such as the ones west of 170th Street along Highway No. 16 West and south on Highway No. 2 exist on land adjacent to major routes entering the City. Highway service centres catering to the needs of the travelling public must be easily accessible without interfering with highway traffic and of a design standard reflecting the importance of the entrances to the City. Sites for service stations, public garages, roadside restaurants, motels and motor hotels, trailer courts and campsites should be provided.

Adequate off-street parking facilities should be provided throughout the strip commercial area. All parking facilities should be screened from the main street or placed to the rear of the commercial development.

The shopping area should be made readily accessible from its tributary area through the careful design of roads and access points in the area leading to the district.

Open and enclosed attractively landscaped spacious malls should be provided. Maximum attention should be given to providing year-round all weather protection.

Good pedestrian access should be provided from nearby parking facilities and from surrounding residential areas. Pedestrianways should be well lighted throughout and shoppers should be protected from weather discomfort.

Where a major strip commercial area has developed and will further expand, a system of transit operations should be devised to take advantage of the lineal nature of the area. The experiments of other cities with special transit vehicles such as the minibus should be studied to determine their possible application.

Commercial development in the district should be attractive and pleasant. The standardization of an attractive facade and street furniture design following a suitable theme should be encouraged. The entire strip commercial area should be considered

Isolated Commercial Areas Isolated commercial areas, usually grocery stores that offer a variety of goods, are found within or near older residential areas of the City. These stores, serving an area from 3 to 6 blocks or about 600 families depend upon extended business hours to survive the competition of the supermarkets. Although accounting for a very small portion of commercial business

EXISTING PLAN

ILLUSTRATING PLAN

11[

LI LI LI

113

LI LI LI LI LI

II II

II III PROVIDE ADEQUATE PARKING

MINIMIZE PEDESTRIAN AND VEHICULAR CONFLICTS

III

ALL WEATHER PEDESTRIAN PROTECTION

ATTRACTION OF THE MAJOR DEPARTMENT STORE

jj jjJ

II II

QUALITY AND CHARACTER IN STORE FRONT TREATMENT 7-1

LI LI

STREET FURNITURE HARMONIZING WITH SURROUNDINGS

LI Fl

Li LI

PROVIDE OFF-STREET LOADING FACILITIES

CONVENIENT TRANSIT SERVICE

III

ENLARGE EXISTING PARKS

1 1

ACCESS LIMITED TO EMERGENCY VEHICLES

Il III

PEDESTRIAN CIRCULATION CONVENIENCE

CONSOLIDATE SIMILAR COMMERCIAL USES

LI LI

LI LI LI LI LI LI LI LI LI LI

LI LI II

LI LI

1A1

II II

LI â&#x20AC;¢ /zy OF

/AM LI

LAND USE KEY 0 COMMERCIAL 0 OFFICE AND PROFESSIONAL 0 APARTMENTS I-I RESIDENTIAL MI PARKS AND OPEN SPACE =I INDUSTRIAL 1771 SPECIAL USES CO CHURCHES WA PARKING FACILITIES

LI LI E

LI LI

EDMONTON GENERAL PLAN

DWG

PRINCIPLES FOR IMPROVING A STRIP COMMERCIAL AREA

COMMERCIAL DEVELOPMENT

CHAPTER VI

as an architectural unit and should be of the highest quality. 7.

Non-retail uses creating "dead spots" in the continuity of shopping frontage should be removed, where practical, in order to provide maximum concentration for the convenience of pedestrian shoppers.

The strip should be made as compact as possible through consolidation and filling in open spaces with additional commercial development. Major commercial developments such as department stores should be

placed at the centre of the strip as a major attraction around which the minor commercial outlets may beneficially locate. At the same time, uses which do not require to be central but which benefit from a location in a commercial district, for example, automotive and service facilities, may be suitably located adjacent to the strip. 9.

Residential areas adjacent to the commercial area should be developed to higher densities to encourage a higher market potential for the commercial areas and provide convenient shopping and service facilities for the apartment residents.

DIAG. 3 â&#x20AC;&#x201D; EXISTING WHYTE AVENUE COMMERCIAL DISTRICT. Scattered commercial uses, a lack of adequate parking and the extent of the district makes it unattractive as a regional shopping centre.

A Plan for the Whyte Avenue Commercial District The area under consideration consists of that portion from 99th to 109th Streets and from Whyte Avenue (82nd Avenue) north to the River. Development originated some sixty years ago around 104th Street at the terminus of the early Canadian Pacific Railway line. A street railway system further encouraged businesses to spread along Whyte Avenue and 109th Street. This area remains essentially the same today; that is, a concentration of business development in the vicinity of 104th Street and sparsely developed strip commercial along Whyte Avenue from 99th to 109th Streets and north on 109th Street to the High Level Bridge. The surrounding single family area has become obsolete and is being replaced by multiple family dwellings.

cause of the nature of its present state, may be divided into several functional groups. The core, around 104th Street, contains the major retail, office and civic concentration. Strip commercial east and west of this core consists of mixed uses: retail, office, residential, industrial, churches, hospitals and vacant areas. Nodes of commercial development on 99th and 109th Streets serve the immediate area. Some of the major problems encountered in the Whyte Avenue commercial district are as follows: (a) There is an excess of minor retail outlets of the same category as evidenced by vacant shops. (b) Inadequate parking forces customers to park on the street or behind the Avenue some distance from their destination. (c) Development consists of individually owned small shops, dilapidated buildings, nonconforming land uses and vacant lots. (d) A lack of adequate direct cross-river transportation facilities, thus tending to isolate this area from the central business district. (e) Cross river traffic from the south is routed down 104th Street directly through the centre of the shopping area. The heavy traffic flow impedes both vehicles and pedestrian shoppers.

This area faces severe competition from planned regional centres and the downtown and its future is in jeapordy unless firm action is taken. The existing intensive commercial development, the employment potential of this area, the increasing high-density residential development nearby, the area's proximity to the University and the present service area of Whyte Avenue indicate that this area could be revitalized through careful planning to perform more effectively as a regional commercial centre. Existing Conditions The Whyte Avenue commercial district, be-

The Proposed Treatment

ill

(a)

The core should be consolidated, increased and revitalized to create a highly competitive and specialized retail area for South Edmonton. This would involve considerable rehabilitation or redevelopment of substandard buildings and the introduction of supporting commercial uses. Additional retail and office uses should be encouraged to locate and to provide a greater variety of goods and services. Large department stores, shopping malls and related uses should be incorporated in the redevelopment program. Major department stores should be offered key positions in the core area to attract customers and serve as the hub of the entire Whyte Avenue district. New development should be laid out as part of the overall plan with a clear identity and function of its own. This can be achieved through use of wide setbacks with attractive, open and/or enclosed pedestrian malls with grade-separated walks connecting adjacent blocks.

(b)

Parking capacity in the area should be substantially increased and located in a manner so as to avoid congestion to the major thoroughfares. Parking facilities with access from minor streets would be a feature. Where possible, vehicular and pedestrian traffic should be separated.

(c)

With the essential retail and office function concentrated at the core, the strip commercial areas to the west and east of 104th Street could best accommodate mixed commercial uses. The present area covered between 99th Street and 109th Street of the complex is too large as evidenced by many vacant stores and lots along Whyte Avenue. It is recommeded that sections of this strip commercial area be used for other related uses, including high-density residential development, or by large commercial land users. Limited low cost accommodation for young businesses in their formative stage could also be permitted. Uses locating west of the core area should orientate themselves toward providing services required and desired by the nearby University population.

(d)

Construction of the new 105th Street bridge will provide direct connections from the Whyte Avenue core to downtown areas of population and employment.

(e)

The congestion at 104th Street will be relieved by one way thoroughfares on 103rd and 105th Streets for north-south traffic.

(f)

Additional east-west thoroughfares are planned for across Mill Creek on 92nd Avenue and over the C.P.R. yards on 76th Avenue.

DIAG. 4 â&#x20AC;&#x201D; ALTERNATE LAND USE PATTERN IN THE WHYTE AVENUE COMMERCIAL DISTRICT. The scattered commercial uses are consolidated in an expanded core to revitalize the area.

â&#x20AC;˘ (f) The lack of east-west traffic routes in south Edmonton has seriously overloaded Whyte Avenue and congested the intersections at 99th, 104th and 109th Streets. (g) Level crossing train movements on the mainline and to the industrial area north of Whyte Avenue seriously hinder the smooth eastwest traffic flow on Whyte Avenue. The Objective The overall objective of the Plan is to provide a guide for complete revitalization of the Whyte Avenue commercial district and to attract more shoppers. Generally, the Plan proposes to: (a) assemble land through public action to enable private initiative to develop larger, more integrated facilities; (b) relieve and avoid traffic congestion by providing better accessibilities and parking terminals; (c) provide adequate pedestrian-ways and minimize pedestrian-vehicular conflict; (d) restrict permitted development to those uses which are most appropriate to the district; (e) enhance the appearance by making buildings, facades, signs and overall space aesthetically pleasing; (f) protect surrounding development from congestion and general nuisance by providing buffers, adequate access and parking.

crossing this would greatly enhance property values in the area. It is also recommended that the industrial area north of Whyte Avenue be eventually removed and the area redeveloped for high density residential purposes.

This will reduce traffic congestion on Whyte Avenue and allow for greater customer convenience. (g) It is strongly recommended that the C.P.R. mainline from 109th Street to 82nd Avenue be lowered. In addition to eliminating level

Chapter VII

INDUSTRIAL DEVELOPMENT INTRODUCTION

MANUFACTURING EMPLOYMENT

Edmonton is basically a primary processing centre with secondary industrial development small in comparison to major eastern cities such as Toronto, Windsor, Montreal or Hamilton. In the last two decades, for example, Ontario and Quebec have consistently accounted for 80 percent of the total manufacturing employment in Canada while accounting for only 63 percent of Canada's population in 1961. However, manufacturing is relatively more important in Edmonton than in Calgary, Regina or Saskatoon. Understandably, the relative sparsity of population and the long distances to major North American markets have been significant factors in limiting the growth of manufacturing in prairie cities.

The impact of the regional agricultural activity and oil and natural gas recovery in the region is especially evident when comparing local manufacturing activity to that in other cities. However, other Canadian cities have relatively more workers employed in the manufacture of textile and knitted goods, machinery and equipment, electrical products, tobacco and rubber products. The value of goods manufactured in the Metropolitan Area has increased from 191 million dollars in 1954 to 497 million in 1964-0 growth rate of 10 percent annually.

LOCATION OF MANUFACTURING ACTIVITY

Nevertheless, Edmonton enjoys the prospect of a future rivalled by few other Canadian cities. Since February 1947, when the greatest oil discovery in Canada was made at the Leduc field, twenty-five miles southwest of Edmonton, this City has experienced the development of an extremely sound economic base. It is the site of a substantial refining and petrochemicals complex, one of the largest meat-processing and packing centres in Canada, a substantial primary and secondary iron and steel industry, an increasingly important centre of industrial and resource research and the site of major academic and vocational institutions.

DIAG. 1 - GROSS VALUE OF MANUFACTURING PRODUCTION - METROPOLITAN EDMONTON, 1961.

FOODS AND BEVERAGES CLOTHING WOOD FURNITURE PAPER AND ALLIED

IND USTR Y

Although many new firms will be established in future years, the City should expect a notable increase in branch plant operations, joint ventures or license arrangements whereby existing local manufacturers would undertake to produce goods for national or international firms.

District 1 is a relatively new industrial area being partially opened for development first in

Continued resource development and expansion of the local and regional population will necessarily lead to growth of the manufacturing sector. The City of Edmonton, by undertaking appropriate industrial research studies and sponsorship of industrial conferences, etc., and local entrepreneurs, through their initiative and zeal in reaching out for new markets in, for example, the northwest United States and Far East, can spur the rate of growth and ensure continued economic prosperity for this community.

PRINTING PUBLISHING AND ALLIED PRIMARY METAL METAL FABRICATING MACHINERY TRANS. EQUIPMENT NON-METALLIC MINERAL PRODUCTS PETROLEUM AND COAL PRODUCTS CHEMICAL & CHEMICAL PRODUCTS OTHER MISC. MANUFACTURING 0

20 40

60 80 100 120 140 160 180

VALUE IN MILLIONS OF $

TOBACCO PRODUCTS AND RUBBER LEATHER TEXTILE AND KNITTING ELECTRICAL PRODUCTS MACHINERY

EDMONTON AVERAGE 11 CITIES

PAPER AND ALLIED MISC. MFG. INDUSTRIES

f4) FURNITURE AND FIXTURE TRANSPORTATION EQUIPMENT PRIMARY METAL NONE METALLIC MINERAL

•

DISTRICT 1. The attractive appearance of this district will be maintained by the continued enforcement of a high standard of development.

This district contains all but one of the major slaughtering and meat packing plants and, in addition, includes tanneries, stockyards, feed mills and feed lots. The odor problem has been sufficiently severe to affect the amenities of nearby residential districts. However, Provincial air pollution regulations passed in 1961 and effective as of September, 1966 have forced most companies to install odor reducing equipment to control odorous emissions. Thus, within the next decade, odor from the meat packing industry will be significantly reduced and therefore much less of a problem influencing the development of land uses.

WOOD INDUSTRIES PETROLEUM AND COAL PRODUCTS CLOTHING PRINTING PUBLISHING AND ALLIED CHEMICAL AND CHEMICAL PRODUCTS METAL FABRICATING

FOOD AND BEVERAGES

moo imunormim• 0

With the exception of the area between 119th Street and 121st Street north of 108th

PERCENT

DISTRICT 3. The second largest meat packing complex in the nation.

DIAG. 2 — COMPARATIVE MANUFACTURING EMPLOYMENT DISTRIBUTION, 1961.

1951. At present about one-third of the area is developed. Approximately two-thirds of the manufacturing establishments in this district are engaged in the manufacture of wood products, iron and steel products and non-metallic mineral products, especially cement and concrete block manufacture. District 2, which contains C.N.R. and N.A.R. railway yards and the Industrial Airport, is occupied primarily by firms engaged in the manufacture of transportation equipment. There is some concentration of wood products and furniture manufacture in the eastern portion of this district. Of the 15 meat packing firms (large and small) in Edmonton, 9 are located in District 3.

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KEY 1.

Industrial Estate District

Central Industry

Transportation and Airport Study

Mixed Industry

Meat Packing

Steel

Mixed

Refineries and Chemicals

EDMONTON GENERAL PLAN

DWG

INDUSTRIAL DISTRICTS

INDUSTRIAL DEVELOPMENT

CHAPTER VII

Avenue, District 4 is the oldest industrial area in the City. A very wide range of industries is located in this district. The food and beverages industry, accounting for 25 percent of the firms in this district, includes manufacturing confectionery products, potato chips, processed cheese and other dairy products, breakfasts cereals, beer and flour. Firms in the iron and steel industry also represent about one-quarter of all the manufacturing establishments in this district.

manufacture iron and steel products. Establishments which manufacture or service equipment for the oil industry have tended to concentrate in this area. Of the 28 firms in District 7 in 1963, 13 were in the iron and steel industry, 5 in the wood products industry. Generally, the firms in this area are extensive users of land; many have land adequate for substantial expansion. District 8, located east of the City limits, is occupied almost solely by oil refining plants (Imperial Oil, British American and Texaco), oil tank firms (Interprovincial and Transmountain Pipelines) and secondary chemical product plants (Canadian Industries Limited, Interprovincial Chemicals and Naugatuck Chemicals). The largest petro-chemical plant in Canada, Chemcell (1963) Limited, is also located in this District.

District 5 in the Central Area of the City contains offices, wholesale and retail businesses. Although not an industrial district in the strictest sense, it does contain one-fifth of the manufacturing establishments in Edmonton. Adequately served by transit facilities, this area contains several clothing and other manufacturing firms requiring relatively large numbers of workers. There is also a marked concentration of printing, engraving and publishing firms serving the office and other commercial establishments in the district. Located in this district are more than one-third of all local firms in the miscellaneous manufacturing industry, including scientific and professional equipment, jewelry and silverware, plastic fabricator and signs and displays. Early industrial development south of the River concentrated in the northern portion of District 6, where railroad facilities have been provided by the Canadian Pacific Railway since 1891. Although development has been especially rapid in the past decade, there is on ample supply of land for light and medium industry. More than one-third of the firms in this district

DISTRICT 7. Concomitant with the development of the region's petroleum and gas resources has been the establishment of ancillary industries.

DISTRICT 8. Petroleum refining accounts for over six percent of the total manufacturing employment in Metropolitan Edmonton.

MANUFACTURING EMPLOYMENT FORECASTS Based on 1951 Census dqta, estimates of 1961 Census data and studies of provincial and Canadian growth patterns, it is estimated that, by 1981, employment in metropolitan Edmonton manufacturing industries will reach 43,280 or 17 percent of the 1981 total labour force of 254,600. As a percentage of total manufacturing, employment in the iron and steel industry and the non-metallic mineral industries should rise considerably. This would be balanced by a relative decline in employment in the foods and beverage industry. Although substantial development is expected in petroleum, chemical and allied industries, automation is likely to cause

modest employment increases in these categories.

Gross Industrial Acreage (1981) Used Vacant

INDUSTRIAL LAND REQUIREMENTS

City of Edmonton ____ 9,200 1,800 Remainder of Metropolitan Area __ 4,800 Available Total 14,000

Based on estimates of employment in manufacturing and related industries requiring a location in industrial areas, it is expected by 1981 that 5,200 additional acres of industrial land will be required within the present City boundary and 2,100 acres beyond present City limits. Although metropolitan Edmonton does have sufficient vacant land to accommodate this anticipated growth, shortages of large parcels of land suitable for heavy industrial uses exist within the City.

1951 Labour Force

1961 1981* Labour Labour Force Force % Primary 2,550 3.9 4,337 3.3 7,640 3.0 Manufacturing 10,002 15.3 17,477 13.3 43,280 17.0 Construction 7,844 12.0 12,442 9.5 22,910 9.0 Transportation, Communication & Other Utilities 7,779 11.9 14,649 11.1 26,480 10.4 Trade 13,924 21.3 27,710 21.1 58,560 23.0 Finance, Insurance and Real Estate 2,484 3.8 5,467 4.16 12,730 5.0 Service & Public 20,265 31.0 46,278 35.2 81,470 32.0 Unclassified 523 • 0.8 3,216 2.4 1,530 0.6 Total 131,576 65,371 254,600+ *The estimates for 1981 were based on definitions used in the 1951 Census and Estimates of 1961 employment as compiled by the Dominion Bureau of Statistics. In the 1961 Census definitions for some categories were changed. Although total employment is not affected, some individual category estimates require revision. +Includes 13,550 persons employed at the International Airport, Devon, Leduc, Spruce Grove, Noma° and Fort Saskatchewan.

Used Vacant Total 4,000

7,000 11,000

Remainder of Metropolitan Area

2,700

4,300

Total

11,000

INDUSTRIAL EMPLOYMENT METROPOLITAN EDMONTON

Gross Industrial Acreage (1964)

City of Edmonton

Total

7,000

6,700 11,300 18,000

Agricultural land on the outskirts of the Metropolitan Area could in some areas, be used for industrial development, but this has not been included in the above acreage calculations.

MANUFACTURING EMPLOYMENT METROPOLITAN EDMONTON 1951

1961

Labour Force %

3,236 1,874 1,362 107 69 800 536 317 71 715 1,587 167 254 105 762 1,904 167 10,797

Food & Beverage Meat Products Others Leather Textile & Knitting Clothing Wood Furniture & Fixture Paper & Allied Printing, Publishing & Allied Iron & Steel Products Non-Metallic Mineral Chemical & Allied Electrical & Rubber Petroleum Refining & Coal Prod. Transportation Equipment Miscellaneous TOTAL

Labour Force %

30.0 17.4 12.6 1.0 0.6 7.4 5.0 2.9 .7 6.6 14.7 1.5 2.4 1.0 7.1 17.6 1.5 100.0

1981

Labour Force

5,300 30.3 8,990 20.8 2,589 14.8 4,200 9.7 2,711 15.5 4,790 11.1 67 .4 150 .3 89 .5 650 1.5 1,139 6.5 2,300 5.3 918 5.2 1,650 3.8 598 3.4 1,500 3.5 363 2.1 900 2.1 1,294 7.4 2,245 5.2 2,917 16.7 10,600 24.5 820 4.7 3,200 7.4 1,589 9.1 2,640 6.1 148 .9 210 • .5 1,113 6.4 1,530 3.5 706 4.0 5,215 12.0 416 2.4 1,500 3.5 17,477 100.0 43,280 100.0

KEY UPPER NUMBERS SHOW 1961 EMPLOYMENT LOWER NUMBERS SHOW 1981 EMPLOYMENT

DIAG. 3 - METROPOLITAN EMPLOYMENT, 1961 - 1981.

portation connections, a skilled labour force and the provision of municipal services at reasonable cost, especially the low cost of natural gas.

Objectives for Industrial Development 1.

To promote the achievement of a diversified or balanced industrial mix which will provide a variety of employment opportunities, to provide greater cyclical stability and broaden the tax base of the community.

To draw industrial development to Metropolitan Edmonton by creating a sound and advantageous environment for industry.

To ensure that there are adequate reserves of industrial land for all anticipated requirements, and particularly for heavy industry.

To publicize the industrial development opportunities available through sponsorship of industrial development conferences, advertisements and other promotional means.

Principles for Industrial Development 1.

To protect and, if possible, enhance the locational advantages of industrial expansion in Edmonton, re: regional and national trans-

The export of goods and services should be encouraged to develop a stable, healthy and growing economy. Regional and national markets should be sought for goods produced locally.

(

fJ PROPOSED INDUSTRY

as EXISTING INDUSTRY

DIAG. 4 — 1965 AND 1981 INDUSTRIAL AREAS.

and university trained. Changes in technology, automation and more sophisticated inter-firm competitiveness will require that job skills of the City's labour force be continually upgraded and expanded.

The strength of the local industrial sector is dependent on the provision of a number of factors, which form part of the "inputs" (land, labor, capital) of the firm. The City should ensure the provision of: (a)

An Adequate Transportation System—

Wise and careful resource development in the Edmonton region should be encouraged since this directly contributes to the continued growth and stability of many local manufacturing enterprises.

Industry should be diligently sought out and the opportunities that exist for industry in Edmonton should be made known without promiscuous subsidization or the offering of other financial incentives.

The City should particularly encourage those industries that: — broaden and diversify the economic base — utilize the local market, thereby reducing imports to the area — fortify the City against severe cyclical and seasonal fluctuations —have a high degree of employment stability — use or further process locally available raw or semi-processed materials —provide employment opportunities for those people presently unable to find em-

Transportation facilities linking local industrial development with local, regional and national markets, with sources of row materials and ancillary industry. (b)

Industrial Land—Sufficient land should be available in industrial parks, estates or other industrial areas at suitable locations in a variety of parcel sizes, with the desired combination of services, utilities and transport facilities.

(c)

Public Utilities and Services—In addition to the labour, land, plant and raw materials, the cost of utility services can be a significant portion of total costs of manufacturing. The adequacy of the water supply and present low cost of electrical power and natural gas should be safeguarded to maintain Edmonton's advantageous competitive position.

(d)

Labour Force—Employers require persons with varied skills and training ranging from the unskilled (a declining segment of the labour force) to the highly skilled

EXPORTS OF GOODS AND SERVICES

Effective screening of unsightly storage yards should be provided.

Greater emphasis should be given to the provision, in industrial areas, of buffers and boulevards attractively maintained with trees, shrubs and grass.

10.

Industry should be separated from residential or public areas by the provision of buffer zones. Where the application of buffering seems inappropriate, development could be graded by zoning from heavier to lighter types of industry to non-industrial uses.

11.

To prevent the encroachment on industrial land by incompatible and restrictive nonindustrial uses.

12.

To remove isolated pockets of industrial development if surrounded by other uses more appropriate for the area. Alternatively, obsolete housing and other undesirable uses in industrial areas should be cleared and the land re-developed for industrial or related uses.

13.

The City should have in reserve a number of parcels of industrial land which could be made available, at reasonable cost, to industry dislocated as a result of construction of freeways and other roadways, rapid transit facilities or urban renewal projects.

14.

The following pattern of industrial land use is suggested in applying the above principles: —industries which require large parcels of land and which may be obnoxious or dangerous would locate in the industrial expansion area east and northeast of Edmonton. Prevailing winds will carry obnoxious odors away from the City; outlets for industrial sewage will be downstream from the City. In addition, the natural buffering of this industrial area by the River Valley makes it particularly suitable for the suggested uses. —the prevailing wind direction which blows towards large areas of housing in this City and St. Albert and various proposals for greenbelt and major park development would suggest that development in the northwest area be limited to industry presenting no pollution problems. —appropriate land uses for vacant area adjacent to existing establishments emitting odors should be chosen with care. At the same time, methods of minimizing the detrimental effects of obnoxious emissions by industries should be pursued with greater vigour than in the past. No industry should be able to sterilize large tracts of land around it because they produce obnoxious odors.

IMPORT OF GOODS & SERVICES

LOCAL ECONOMY

OTHER: BORROWING, TRANSFER PAYMENTS, INTEREST AND DIVIDENDS RECEIVED ETC.

OTHER: PURCHASE OF BONDS OF NON LOCAL FIRMS SENT TO ABSENTEE LANDLORDS ETC.

DIAG. 5 — THE LOCAL ECONOMY. The provision of a strong local economy is dependant upon an expanding export sector and the development of industries to replace imported goods and services.

ployment, especially the handicapped and the older segment of the labour force —are functionally interdependent and financially independent. S. Historically, the location of industrial land has been greatly influenced by railroad facilities. Present day industrial land planning principles differ in that more emphasis is placed on: —the ready accessibility of the local and regional highway network — the effect that industry will have on adjacent land uses —the minimization of the time—distance of the employees' journey to work — suitable topograph ic characteristics requiring a minimum of grading or filling, good drainage and stable soil conditions —the economical extension of utilities and other services for industry —the minimization of grade level road and railroad crossings — the provision of industrial areas of a size adequate to permit related firms to be located adjacent to each other. 7. Encouragement should be given to the provision of planned high amenity industrial districts with attractively designed buildings and good standards of site development including landscape treatment of visible yards and parking areas.

INPUTS

LAND, LABOUR, WATER, ELECTRICITY, NATURAL GAS, RAW MATERIALS AND OTHER SERVICES

discouraged unless it is directly tied to the function of downtown and is otherwise not obnoxious or incompatible with other central uses.

OUTPUTS

1■0

MANUFACTURING

FINISHED PRODUCT SHIPPED VIA TRUCK, RAIL AND AIR

15.

Zoning provisions for objective performance standards should be implemented. These should outline the maximum allowable limits of the following objectionable or dangerous conditions: noise, smoke, dust and other particulate matter, odor, gas (toxic and non-toxic), glare, waste, humidity, electromagnetic interference and radiation.

16.

Industrial research regarding the opportunities for new industries or the expansion of existing establishment within the Edmonton area and the possibilities of export of locally manufactured goods should be undertaken. Analyses of the needs of industry (land, labour, utilities and other services) would also be part of the program to encourage industrial development.

DEMAND

DIAG. 6 — INPUTS AND OUTPUTS. The ability of local firms to compete effectively in export markets is dependent on the provision of competitively priced goods and services.

—aircraft or air transport oriented industry should have priority in developing land at the Industrial Airport. —industry in the Central Area should be

DIAG. 7 — SOUTHEAST INDUSTRIAL AREA STAGING AND DESIGN PLAN. Industrial land for future growth.

ORDER OF DEVELOPMENT STAGE 1 - 1961 - 1966

11=1

STAGE 2 - 1966 - 1971 STAGE 3 - 1971 - 1976 STAGE 4 - 1976 - 1981 UNSTAGED 1981 EXISTING RESIDENTIAL

34 STREET

NMI

Chapter VIII

PARKS AND RECREATION

INTRODUCTION creasingly being use for personal transportation and a greatly improved local, district and regional highway system has enabled people to travel further in search of recreational areas. More and more older people are seeking ways to occupy their free time, thus creating a demand for recreational facilities suited to their particular needs. Finally, outdoor recreation is becoming increasingly popular to people of all ages.

Land for recreation is vitally needed for the physical and mental well-being of all the people living in urban communities. The demand for parkland for both active and passive recreation is steadily increasing while vacant land suitable for recreational purposes is rapidly becoming consumed by other types of urban development. The growing need for park and recreation facilities originates from a number of factors. An advancing technology resulting in shorter working days and longer vacations has led to an increase in leisure time. The automobile is in-

Adequate safeguards, therefore, must be taken to ensure that open space is available

THE NORTH SASKATCHEWAN RIVER VALLEY - PARKLAND FOR FUTURE GENERATIONS.

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EDMONTON GENERAL PLAN

DWG.

PARKS AND RECREATION PLAN

PARKS & RECREATION

CHAPTER VIII

in sufficient reserves and in a variety of locations to meet the future needs of the population.

ment of Edmonton's population. A Parks Master Plan should be formulated as quickly as possible.

In 1965, the combined acreage of all City parks, the North Saskatchewan River Valley, ravines and public golf courses amounted to 4,800 acres or 8.8 percent of the total urban area. If the acreages of joint school/park developments, cemeteries, parkland privately leased from the City, traffic islands and buffer strips are added to the above figure, the City's open space area would total 6,800 acres or 12.4 percent of the total urban area. Large cities rarely meet the U.S. National Recreation Association minimum standard of 10 acres per 1,000 population. Edmonton, however, has an enviable ratio of 12.9 acres of public parkland per 1,000 persons. This is due, in part, to the large acreage of parkland in the North Saskatchewan River Valley. It is estimated that an additional 3,200 acres of open space will be acquired by 1981, of which 2,100 acres will be located in the River Valley. Thus Edmonton should have 12.1 acres of open space per 1,000 population in 1981. In order to achieve this high standard, a firm and consistent policy of land acquisition will be necessary in the River Valley as well as in old and new neighbourhoods.

To ensure that the development, operation and use of all parks and recreational facilities for public use shall be properly planned, designed, constructed, operated and administered, and the Parks and Recreation Bylaw be regularly reviewed to assist in achieving these purposes.

To guarantee the retention of existing open space, especially in the River Valley and to acquire privately owned land in the River Valley and major ravine areas in and near the City.

To provide parks and recreational facilities in locations which are most convenient to the greatest number of people and locating them as near as possible to schools and proposed community centres.

Principles 1

Until such time as a Parks Master Plan is available, interim planning for parks should be guided by the minimum standards for the development of active and passive recreation areas recommended in "Report on Active and Passive Recreation, Park and Open Space Facilities within the City," 1955. The Parks Master Plan should outline minimum development standards and refer to a staging and sequence of development program to outline in detail the areas for acquisition and development. Emphasis should be given to an analysis of those neighbourhoods and communities where severe space shortages presently exist. A standard of "so many" or "x" acres of open space per thousand population is misleading if some neighbourhoods are lacking in parks and recreational facilities. Local demands for parks and recreational facilities may change as the structure and composition of the neighbourhoods may change, and it will be necessary that the Parks Master Plan be regularly reviewed. Ideally, this should occur concurrently with the review of the General Plan.

The manner in which park lands are determined and allocated in specific districts must be related to pertinent local conditions such as topography, proximity to the River Valley, character and age of the community, socio-economic characteristics of the residents and the location of existing facilities.

Recreational facilities should be planned and allocated to serve all age groups on the following design basis:

Parkland and recreational facilities should be distributed throughout the City in accordance with the distribution of population so that the greatest number of people may benefit. Parks and recreational areas should be located where they will be most convenient to the people who are to use them. Privately owned recreational facilities should only be allowed to locate on City owned parkland on a concession or lease arrangement whereby the City could enforce appropriate standards of operation. Three broad classifications of recreational areas may be made on a geographic basis: the City proper, the immediate surrounding sub-regional area within a fifty mile radius of the City and the regional district in excess of fifty miles. The most intensive recreational development takes place within the City limits in close proximity to the urban population concentrations. The immediate district around the City permits use of access for day and evening use by City residents, while regional facilities are orientated to physical features, such as lakes, rivers and mountains at greater distances and serve both Albertans and visiting tourists.

Objectives 1.

To provide parks for adequate active and passive recreational purposes and associated facilities based on an approved Master Plan to meet the requirements of a balanced yearround program designed to serve every seg-

Neighbourhood level (3000-5000 population) (b) Community level (4-6 neighbourhoods) (c) District level (3-4 communities) (d) City level (entire urban population) (e) Regional level (a)

GAMES AND PICNIC AREA

4 Where possible, land for playfields and schools should be planned as one unit to provide for more economical development and practical maintenance of combined facilities. This planning approach should be undertaken in preference to the separate provision of parks, playfields and schools on a neighbourhood, community and district basis. 5. Park design and its subsequent implementation should provide for proper programming related to use and demand, the adequate provision and effective utilization of space, convenience and safety to users of the park, ease of park supervision, economy in construction and maintenance, aesthetically pleasing environment, adequate accessibility for users of the park and utilization of all desirable natural features.

DIAG. 1 - NEIGHBOURHOOD PLAYGROUND.

during the day and public activities during the

weekend and evenings. Playlots, softball diamond game courts, wading pools, shaded areas and a neighbourhood centre are integral components of this type of facility.

BASIC COMPONENTS OF A COMPREHENSIVE AND BALANCED PARK AND RECREATION PROGRAM

LOCATION: The open space should be centrally located within a one-half mile radius of all parts of the neighbourhood. The park is best located adjacent to an elementary school and utilizes any physical features that exist, i.e. ravine or wooded land. Proximity to major traffic arteries should be avoided to afford the maximum level of pedestrian safety possible.

Playlot or Block Playground FUNCTION: The playlot is a small area intended primarily for use by pre-school age children. The provision of these small recreational lots must be justified by special survey as many areas do not require this facility and high maintenance costs and supervisory problems are encountered. Mothers of small children wish to keep them in sight from home for safety reasons; this factor discourages sufficient use of small playlots to justify their initial cost in many cases.

SIZE: A combined school and park area of 13.5 acres usually provides an adequate amount of land area subject to local variances according to the conditions that prevail. Applying minimum standards, alternatives could be justified,

LOCATION: Playlots should be carefully sited to provide easy and safe access.

DIAG. 2 - NEIGHBOURHOOD ORNAMENTAL PARK.

SIZE: The size may vary from 2,000 to 10,000 square feet, depending upon the number of children in the immediate vicinity. In some instances, the playlot could constitute a part of a larger park area to provide flexibility of function.

PERENNIAL BED

Neighbourhood Playground FUNCTION: This playground is designed to serve the active recreational requirements of the surrounding neighbourhood, providing a place for groups to gather for communal activities. The playground should operate as a centre for recreational programs, serving school needs (

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EDMONTON GENERAL PLAN

DWG.

COMMUNITY LEAGUE, SCHOOL AND PARK COMBINATIONS

PARKS & RECREATION

CHAPTER VIII

POPULATIONS OF CITIES AND TOWNS -

Major Roads

Mirror Roads

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+ Golf Courses

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EDMONTON GENERAL PLAN

DWG.

EDMONTON RECREATION DISTRICT

PARKS & RECREATION

CHAPTER VIII

such as providing a larger park or two smaller ones if an extremely high residential density prevails throughout the district.

LOCATION: This pork, generally serving four neighbourhoods, should be located adjacent to a high school or junior high school and within one-half mile of any part of the area served. These parks should be near to public transportation and it is not essential that these playfields be located within walking distance for all users. SIZE: A size of 22 acres is suitable when a community park is combined with a junior high and elementary school or 15.75 acres when combined only with a junior high school.

Community Park and Playfield FUNCTION: This facility should be designed to meet space and program needs of youths and adults. Maximum use is obtained if these playfields are constructed adjacent to either junior high or senior high schools, with use by students during the week. To provide adequately for this service, park development should include large playing fields for organized sports, game courts, indoor recreational space, a swimming pool, picnic areas, a skating rink and adequate off-street parking. A playground may also be included as a component.

District Park FUNCTION: This type of pork provides a generous portion of open space for active and passive recreation in an urban environment. If possible, areas with natural features such as rolling topography and natural wooded areas should

MAYFAIR PARK â&#x20AC;&#x201D; This new City Park in the River Volley will contain a boathouse, outdoor theatre, restaurant, swimming pool, pier and many trails, promenades and foot-bridges tying the area together.

11111 NATIONAL PARKS •

PROVINCIAL PARKS

•

CAMP SITES

•

HISTORICAL SITES

•

SKI AREAS MAJOR ROADS

4 AIRPORTS

EDMONTON GENERAL PLAN

DWG.

EDMONTON RECREATION REGION

PARKS & RECREATION

CHAPTER VIII

be used in order to stimulate public use and enjoyment. The type of improvements made by the City will depend on existing landscape amenities and would include trails, roadways, comfort stations, picnicking areas and refreshment booths. Borden and Coronation Parks have been planned on this principle.

topography. Sites on the Edmonton River Valley such as Big Island, are ideal. SIZE: Regional parks can vary in size from 100 to 1000 acres.

Other Regional Facilities A regional recreational system is not complete without scenic drives, swimming areas in a natural setting, boating areas, lake resorts, bridle paths and foot paths and golf courses. Smaller regional parks with specialized facilities and singular attractions could be established if the acreage required for a major regional park is not always available.

LOCATION: Serving a population of 40,000 to 50,000 people a district park should be adjacent to major urban roadways to ensure efficient access for all. The provision of district parks is critically important in those residential areas well removed from the North Saskatchewan River Valley, e.g. the area north of 125th Avenue. SIZE: A district park may vary between 60 and 100 acres depending upon the location and site.

City Parks FUNCTION: This type of park provides active and passive recreation for the entire urban population. Maximum use is promoted by placing these facilities in wooded locations adjacent to prominent physical features such as creeks and rivers. As in a district park, physical improvements, which would not harm the natural character of the park should be constructed. City parks provide plenty of space for development of specialized facilities such as boating docks, golf courses, athletic fields, zoos, botanical gardens, natural museums and aquariums. LOCATION: Within the City of Edmonton, the North Saskatchewan River Valley affords an ideal opportunity for development of scenic city parks within its wooded confines. Mayfair Park is a fine example of a city park which could be developed to contain many additional specialized facilities. SIZE: There exists no limit to the size of a city park other than economic and physical restrictions.

STORYLAND VALLEY ZOO.

THE RIVER VALLEY The North Saskatchewan River Valley, constituting Edmonton's most outstanding physical feature, influences every aspect of urban growth and development. Firm policies are necessary to protect its natural beauty and utilize the unique advantages afforded by its presence.

Regional Parks FUNCTION: Regional parks are required to provide the metropolitan population with a variety of facilities in a setting not available within developed urban areas. These natural wooded spacious areas would be developed to provide camping, picnic, playing field, swimming and boating facilities for the summer months, with skating, tobogganing, skiing, sleigh riding and skidoo facilities in the winter.

Objectives 1. To acquire for park and recreational use within practical limits all those portions of the River Valley and its ravine system not presently under public ownership to ensure future use by the general public.

LOCATION: Within a one-half to one-hour drive of the major centre in an area with suitable

2. To protect the use of the River Valley by

Where parkland is essential for the location of transportation facilities such as freeways and express ways, every effort should be made, through alternative design proposals, to minimize effective loss of parkland. A

developing within its boundaries, community, district and city park and recreational facilities whenever possible to do so. 3.

To initiate and maintain effective conservation practices to ensure the preservation of the natural foliage throughout the River Valley and ravine system.

cost for the parkland loss should be established and budgets for parkland acquisition

should, subsequently, be related to the value of land removed from park use.

Principles 1.

The River Valley should be developed primarily for public recreational purposes. Other uses such as institutional and commercial recreation should be permitted as special uses only on an individually selected basis in keeping with the General Plan policies. The development of the River Valley in proximity to high density residential areas and the downtown central business district, should be co-ordinated with the principles and objectives proposed for these areas of intensive use.

A co-ordinated system of pedestrian trails and bridle paths should be planned and provided along the River Valley providing safe and scenic recreational travel routes for public use.

Where appropriate, park drives should be constructed throughout the River Valley to provide access to all parts of the park system and allow relaxed drives at low speeds. Such a system would function independently from cross river and limited access roadway facilities located throughout the park area.

There should be close co-ordination and integration of City and regional planning policies to ensure future park and recreational use of the River Valley in the Metropolitan

The study of a phased acquisition of existing incompatible developments within the River Valley should be initiated and included within a long-range capital budgeting program.

Area.

,041Y

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Chapter IX

PUBLIC AND SEMI-PUBLIC USES

General Objectives

INTRODUCTION The proper functioning of governments and the effective provision of essential public services is dependent upon the location and amount of public facilities provided and their co-ordination with other land uses in the City. Perhaps no single element of the General Plan is more important to the quality of Edmonton's environment than the provision of adequate community facilities. Home buying decisions often hinge on how well the community is served by schools, churches, libraries and open space.

To provide suitable sites of adequate size for all forms of public and semi-public uses so that they may render the most economical and effective service.

To encourage the development of public buildings of superior architectural design within attractive settings to reflect the dignity and importance of their role in the community.

General Principles

Through the course of time, changes in urban cultural and social mores can require changes in the number and type of public services provided. Contemporary society increasingly demands higher standards and broader ranges of public services. Planning and providing these public facilities also requires co-ordinating related public uses for maximum benefit, accommodating major institutional uses with particular site requirements and using public buildings as a stimulant to private development. Planning these facilities is primarily the task of school boards, departments of the City of Edmonton and senior governmental bodies. As the Capital City of Alberta, Edmonton experiences a greater demand for public buildings and uses than elsewhere in the Province. The Federal, Provincial and Civic Governments and major land users such as the University of Alberta will continue to generate demands for additional buildings and land as the Province increases in population and wealth. In addition, the vast region around Edmonton creates a need for many forms of public services not available elsewhere. In 1961, 12.7 percent of the developed area of the City was allocated to public uses and this percentage is expected to remain relatively constant during the Plan period. In comparison, this figure is slightly higher than the 9.6 percent average for a number of American cities of similar size.

The public or semi-public building should be properly related to the area it is to serve, and to associated functions.

Major public buildings which serve the entire City are best located centrally, with the consequent advantages of convenience to the public, good access and the ease of transacting various types of essential business in a central position of prestige.

Public facilities which serve the neighbourhood, community or district should be located centrally or in the most accessible position to the area served.

Future land and building needs of all government agencies should be related to the land use plan and the objectives of the General Plan to safeguard adequate space in an economical and orderly manner.

The design of public buildings should be of the highest standard.

Public uses with high traffic generating capacities should be readily accessible from major thoroughfares and transit facilities.

EDUCATIONAL FACILITIES Schools The number of children reaching school age and the retention rate in schools is expected to increase substantially during the Plan period,

with increasingly heavy demands upon the provision of schools in both existing and proposed neighbourhoods.

must adhere to the Regulations of the Province of Alberta School Building Act, and are responsible for determining what is adequate for the students in the form of new buildings, space or equipment and new educational and maintenance programs.

Public and Separate School enrollments have shown an average annual incremental increase of 6.8 percent and 10.6 percent respectively. In the 1965-66 term, 64,541 students were enrolled in the Public School System, whereas 23,575 students were enrolled in the Separate School System. In recent years, Separate School enrollments have tended to increase their percentage of the total school population by an average annual amount of 0.6 percent. If this trend continues, then by 1981 only 60 to 65 percent of the total school population will be enrolled in Public Schools, as compared to 73.3 percent in 1965. It is not yet known precisely what impact this will have on subdivision design although some changes will undoubtedly be required. In 1965-66, 23.7 percent of the total population was enrolled in Edmonton schools, and by 1981 the figure is expected to increase to over 25 percent, exclusive of Alberta College and special school enrollments.

Principles

Public School building plans include an additional 45 elementary schools with 12 classes each, 11 junior high schools with 24 classes each, 5 senior high schools with 36 classes and 4 new trades and services high schools. In addition, it is expected that about )2 existing obsolete schools in the inner areas Will be demolished and replaced by new accommodation. The expansion of the Public School Board Adminstration Building, provision of an Instructional Materials Centre, a Central Library Service Centre, a Bureau of Child Study and the replacement of Maintenance Shops are also anticipated. Additional requirements may occur if unusual growth is experienced or if changes in the educational program, taxation or grant policies should occur. It is anticipated that Separate School enrollment increases will require approximately 450 additional classrooms by 1981. Preliminary school plans are submitted to the School Buildings Board which considers the plans pursuant to the School Act and Regulations in regard to enrollment, need and cost. Funds for approved schools are obtained from the Foundation Fund and any construction, additional to what is approved, must be paid for by the School Board. Every effort should be made to broaden the scope of the Foundation Program Fund to recognize rising building costs, varying regional conditions and the Edmonton School operation. A money bylaw is prepared covering the school expenditure which must be approved by the Local Authorities Board. Final building plans, specifications and financing arrangements must be approved by the Alberta Department of Education. The School Boards

School facilities should be constructed on the basis of sound population projections that will determine future school age children and their distribution. Such projections should be completed sufficiently early to allow for adequate planning, financing and construction. Due regard should be paid to the program of residential expansion and the overall policies of the General Plan. Other important factors include: the availability of vacant space in existing schools; the feasibility of transporting children by bus to these schools; and changes in the educational organization or curriculum which may require the construction of specialized new schools or temporary use of old schools or additions to accommodate the teaching of certain courses in the City.

Serious consideration should be given to the construction of two-storey structures so as to preserve the maximum amount of open space for recreational activity.

School, residential and pa rk planning should be undertaken jointly.

Portable schools should be provided in areas growing more rapidly than accommodation can be provided. However, they should be of temporary nature and should only offer relief pending completion of planned accommodation.

When more than one neighbourhood or school tributary area is under construction, then one school to serve the interim school population should be built rather than one for each neighbourhood fragment until neighbourhood growth justifies more schools.

Development of residential areas should, where possible, proceed neighbourhood by neighbourhood to reduce the inconvenience and cost of bussing pupils to elementary schools.

Development of residential areas should, where possible, proceed so that 3 or 4 neighbourhoods are completed to accommodate a junior high school and, in a similar way, a group of communities for a senior high school.

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EDMONTON GENERAL PLAN

Junior High Schools

University of Alberta

4/1 Northern Alberta Institute w of Technology

SEPARATE SCHOOLS

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OTHER EDUCATIONAL FACILITIES

Special Government Schools Private Colleges Private Schools

Senior High Schools

DWG.

SCHOOLS

PUBLIC AND SEMI-PUBLIC

CHAPTER IX

TEACHING AND SERVICE AREA 1

Administration Building

2 Agricultural and Biological Sciences Building 3 Arts Building 4 Henry Marshall Tory Building 5 Chemistry Building 6 Mathematics-Physics Building 7 Cameron Library 8 Rutherford Library

ACADEMIC RESERVE

9 Engineering Building

10 Medical Sciences Building

Biological Sciences Building

12 Nuclear Research Centre Assiniboio Hall

14 Athabasca Hall

16STRE ET

15 Pembina Hall 16 Engineering Centre Phase 1 Students' Union Building

18 Physical Education Building 19 St. Joseph's College 20 St. Stephen's College

10—

Education Building 21 22 Corbett Hall

ACADEMIC AND STUDENT RESIDENTIAL RESERVE

Printing Building

24 Physics Building

20 19

25 Chemistry Building

26 Physical Education Building

I:LAYlitIG FIELD

27 Student Residences

HOSPITAL AND UNIVERSI1Y AREA

. 2

A University Hospital B Cancer Clinic C Colonel Mewburn (to be removed)

1-4

Provincial Laboratory of Public Health

E Research Council of Alberta

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•

Northern Alberta Jubilee Auditorium

Aberhart Sanitarium

Cancer Clinic Hospital

Veteran's Hospital

Proposed Addition to University Hospital

27 KEY

= TEACHING AND SERVICE AREA = HOSPITAL AND UNIVERSITY AREA ACADEMIC & STUDENT RESIDENTIAL RESERVE

1. EXISTING BUILDINGS ram

PROPOSED BUILDINGS AND FUTURE EXPANSION

EDMONTON GENERAL PLAN

DWG.

EXISTING AND PROPOSED BUILDINGS UNIVERSITY OF ALBERTA CAMPUS

PUBLIC AND SEMI-PUBLIC

CHAPTER IX

pects to add four more by 1981. These schools, financed almost wholly by Federal grants, accommodate those students not interested in or not able to complete the high school matriculation -program. The Separate School Board is currently expanding the one vocational school that it presently maintains.

Elementary schools should be planned to provide 12-16 classrooms of 30-35 pupils each, junior high schools 24 classrooms and senior high schools 36 classrooms. In general, these schools should serve one, three to four and six to twelve neighbourhoods respectively. The maximum distance that pupils may be expected to walk to schools of each level should not exceed onehalf mile, one and a half miles and over one and a half miles respectively.

Elementary schools should be located centrally to the population served.

10.

Elementary and junior high schools should be located in areas through which no major traffic thoroughfares penetrate.

11.

Senior high school sites should be located conveniently to the neighbourhoods served and should be accessible to major arteries and public transportation.

12.

Where school boundaries between Separate and Public School Systems coincide at the high school level, efforts should be made to locate the schools on the same general site.

Construction of the first phase of the Northern Alberta Institute of Technology, located adjacent to the Edmonton Industrial Airport, was completed in 1963. In 1965, fall enrollment totalled approximately 1,800 full-time students, plus 1,000 apprentices in training at any one given time. A full-time enrollment of 6,000 is anticipated by 1981. The University of Alberta Full-time student enrollment at the University of Alberta has been rising steadily as a percentage of the age group 18-21 inclusive. In 1957-58 the percentage of this group in University was 7.4, and in 1962-63 it was 12.9. It may reach 18 percent for the Province by 1981. Projections indicate that 18,000 fulltime students will be on the campus by 197273 and that facilities for 25,000 students will be needed in Edmonton by 1981. The staff of the University should increase to 4,350 full-time and 770 part-time by 1981.

Vocational Schools, Trade Schools, Technical Institutions Vocational and trade schools are specialized senior public schools and site requirements for them coincide with senior public school requirements. Vocational schools are generally planned to serve three or more senior school areas.

Resident student accommodation is expected to increase to 3,600 and, in addition, about 670 units of married students' housing to accommodate 2,500 persons are proposed south of the University. Expansion of the academic sector of the University will proceed into north Garneau and south of the University Hospital, creating traffic congestion and an ever increasing parking problem in the area. To cope with these problems, studies are presently under way to ensure better access to and from the University and to determine the need for parking structures. Unless a major reduction in on-street traffic movement is effected, such as might be possible with rapid transit facilities, the present campus will have to be limited to perhaps 20,000 students and a second university established in the City.

The Edmonton Public School Board presently operates three vocational high schools and exTHE NORTHERN ALBERTA INSTITUTE OF TECHNOLOGY.

The development of the University is under the jurisdiction of the Board of Governors who are appointed by the Lieutenant Governor-inCouncil pursuant to the University Act. Development at the University is, therefore, the prerogative of the Province and the University. The University should prepare a comprehensive long-range University master plan outlining development proposals for the entire campus area, particularly the area north of 87th Avenue east of 112th Street and the University Farm.

THE UNIVERSITY OF ALBERTA. By

1972, enrollment is expected to reach 18,000.

This will have a marked effect on adjacent land use and would greatly assist the City in preparing plans involving any scheme for Whyte Avenue and the surrounding urban area as a whole.

bookmobiles. A new main Public Library is currently under construction as part of the Civic Centre Plan. The three bookmobiles operating in the City account for about 24 percent of the total books in circulation, of which the principal patrons are children. The bookmobiles generally serve areas of recent development.

CULTURAL AND SPECTATOR SPORTS FACILITIES

Assuming that the main library serves 60,000 people (in addition to providing facilities for the Metropolitan Area) and each branch library is to serve 30,000, then one main library and 17 branch libraries will be required to serve the 1981 population. To be most efficient, library facilities should be located central to the area they are to serve and on major thoroughfares or in shopping centres.

Library The Edmonton Public Library is administered by the Edmonton Public Library Board in accordance with the Provincial Library Act. By the end of 1966, the Library will consist of the main Public Library, eight branches and three

assistance of the Edmonton Centre, Royal Astronomical Society of Canada. Any additional sites for major public cultural buildings should be determined on the basis of interviews with administrative officials in charge of development programs for these facilities and their estimates of the expansion anticipated during the planning period.

Sports Facilities The majority of Edmonton's public active and spectator sports facilities are City owned and operated by the Parks and Recreation Department. The facilities should be located centrally to the population distribution and should be directly accessible to public transit and major traffic handling thoroughfares. Race tracks, fair grounds and other large land users not requiring built up areas, but near transit routes and major a central location should be located on fringes of arterials. The need to provide a modern covered arena or coliseum has been established. Although additional studies on the most appropriate location may be necessary, the Plan presently supports the Civic Centre site.

THE EDMONTON PUBLIC LIBRARY.

Auditorium, Museum, Art Gallery and Planetarium Edmonton's 2,731 seat Jubilee Auditorium is a multi-purpose facility serving functions such as symphony concerts, operas, stage presentations, movies, banquets, meetings, displays and social gatherings. Although it serves its intended functions quite adequately, it cannot attract or effectively accommodate major convention or small theatrical productions. Present proposals for the new coliseum and convention centre provide for, in addition to on arena with a seating capacity of more than 10,000 people, approximately 30,000 square feet of conference and exhibition space, an 850 seat theatre and an underground parkade. The coliseum and convention centre would provide an anchor for the southeastern end of the Civic Centre bringing people to downtown Edmonton and increasing the downtown's vitality.

CHURCHES In 1963, there were over 50 religious denominations in Edmonton represented by 233 places of worship. The seven major denominations maintained 149 church sites. The smaller denominations, with one or perhaps two places of worship throughout the City, are generally accommodated near the City Centre. However, major denomination churches, in addition to maintaining central area churches, require suitable land in developing suburban neighbourhoods.

Under construction presently, just west of the Central Area, is a Provincial Museum and Archives. Plans are also under.way for a public Art Gallery in the Civic Centre to be completed by the end of 1967. The close proximity of the Art Gallery and the Public Library could be the keystone for future development of part of the Civic Centre as an arts centre. Ldcated at the centre of the City, the Art Gallery and Library will be conveniently accessible to the entire urban area.

One suburban church per 500 parishioners is considered reasonable. Or, alternatively, on the basis of the number of churches serving the people presently, one suburban church site should be provided for every 2,500 to 4,000 people. Based on neighbourhood design principles, churches would most appropriately be located adjacent to a major arterial and within walking distance of commercial or other off-street parking areas, to minimize traffic congestion on residential streets. Inadequate provision of church sites has occasionally resulted, for example, in land previously designated for residential development being allotted for church buildings.

Canada's first public planetarium was built by the City of Edmonton in 1959 at Coronation Pork. The Planetarium is operated by the City Parks and Recreation Department with the

A seminar bringing together church officials and City planning personnel could be held to ensure that a sufficient number of church sites are properly designated in each subdivision.

MEDICAL FACILITIES

Hospital facilities should be functionally differentiated to provide specific services for acute, chronic, convalescent, out-patient or rehabilitation cases. The use of active treatment hospitals by convalescents can be minimized by an efficient patient transfer program.

Future hospital planning should anticipate additional use of hospital facilities due to increasing use of comprehensive medical plans and insurance programs.

The selection of new hospital sites should be made through the co-ordinated teamwork of Hospital Boards and City Departments, giving adequate consideration to: an equitable distribution of medical facilities throughout the City; freedom from noise, smoke, dust, odor and fire hazards; adequate sunlight and ventilation; provision of spacious landscaped areas; and provision of building and employee and visitor parking.

The need for nursing home care service should be determined and a plan developed to provide the required nursing home sites.

A nursing home district should be limited to a maximum of three beds per 1,000 of the population of the district concerned.

Hospitals Presently the City of Edmonton has four active treatment hospitals with a total of 2,607 beds and 439 bassinets. Of these, the largest active treatment centre was the University Hospital with 1,117 beds and 150 bassinets. In addition, the University Hospital in conjunction with the University of Alberta maintains a Medical Faculty, a Nursing School and a centre for medical research. The three other existing active treatment hospitalsâ&#x20AC;&#x201D;the Royal Alexandra with 793 beds and 155 bassinets, the General with 371 beds and 74 bassinets and the Misericordia with 326 beds and 60 bassinetsâ&#x20AC;&#x201D; maintain their own schools of nursing. Numerous convalescent and nursing homes, auxiliary hospitals and special care hospitals provide for long-term illnesses, treatment for tuberculosis and communicable diseases and care for veterans and the aged. At the end of 1965, based on a population of 371,265, Edmonton had 7.0 active treatment beds per thousand or 2,607 active beds and 675 chronic care beds for a ratio of 1.8 per 1,000 population. Using the desired standards of 8 active treatment beds and 2.5 chronic care beds per 1,000 population, and assuming a 1981 metropolitan population of 638,000 the number of active treatment and chronic care beds desired will be approximately 5,100 and 1,580 respectively. Decisions with respect to the number and location of hospitals will largely be contingent on the desired size of new hospitals. Construction of a new Misericordia Hospital with 550 active treatment beds is currently underway near the western limits of the City. An extension to the General Hospital is nearing completion. If the additional new active treatment centres were to be the same size as the City operated Royal Alexandra Hospital, then three more hospitals would be required. Appropriate locations for these hospitals, possibly in the northwest sector of the City, in the northeast and in the southwest (perhaps as an auxiliary to the University Hospital) should be reserved. New chronic care hospitals could be located on the same sites as the new active treatment centres.

Health Clinics The Edmonton Health District has six regional health clinics, each having a medical officer, a dental officer and from six to eleven nurses. Administered by the Local Board of Health, the clinics provide immunization, infant and preschool ancillary services, clinical maintenance to the dentally indigent and sanitary inspections. On the basis of these functions, regional clinics are adequate for 50,000 to 60,000 people giving a degree of decentralization to standard public health services. Four additional clinics are planned prior to 1981, including mobile units to serve more isolated areas. These clinics are customarily located near major arteries or shopping centres where people regularly gravitate.

PUBLIC SERVICE FACILITIES Fire Stations Fire stations are planned to serve an area of about one mile in radius. In the Central Area, the area served is smaller because of the high property cost and density of development. However, these standards are flexible and will depend upon the size of the station. The Fire Department presently maintains 12 stations, a drill school and garage for the maintenance of apparatus. Eight additional stations are planned to meet the need by 1981.

Principles 1.

The planning for hospitals up to 1981 and beyond should consider the development of modern medical practices and most modern and efficient medical facilities for the citizens of Edmonton and region.

All hospital facilities in the City should be co-ordinated to avoid unnecessary duplication and to make maximum use of facilities.

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HEALTH DEPARTMENT

o WELFARE OFFICE P

LIBRARY BUILDINGS

DWG.

HEALTH, WELFARE AND LIBRARY BUILDINGS

PUBLIC AND SEMI-PUBLIC

CHAPTER IX

Principles

Cemeteries

Fire stations should be provided in strategic locations of relatively high population density and directly adjacent to major streets for utmost accessibility, and most economical service.

Fire stations should be located on the fringe of areas of high commercial value rather than within them.

Recent changes in Provincial legislation on the subject of burials restrict the operation of cemeteries to municipalities and religious organizations. Based on land presently held by the City and religious groups, reserves are adequate to beyond 1 981. Railroad and Bus Terminals Edmonton is served by three railroads, the Canadian National Railways, Canadian Pacific Railway and the Northern Alberta Railways. The Canadian National and Canadian Pacific maintain passenger and freight depots in the Central Area and the Northern Alberta Railway maintains terminal facilities on the northwestern outskirts of the City. Recently completed is a new modern C.N.R. passenger terminal; renovations are planned to the C.P.R. passenger depot and new facilities for the N.A.R. are in view. A privately owned bus depot is located in central Edmonton out of which several buslines operate. New facilities should be planned for a transportation exchange point or terminal featuring a heliport, an exchange area between

Police Stations The City Police Department, through the renovation and addition of training facilities to the former Civic Block has headquarter facilities adequate to handle expansion expected during the Plan period. One sub-station is presently maintained in south Edmonton. As the City increases in size, the need for additional substations could become evident. About one policeman to 600 population is the proper ratio according to a police hazards' formula and on this basis, it is anticipated that the force will reach one thousand by 1981, almost double the 1966 figure of 580.

THE NEW POST OFFICE IN THE CIVIC CENTRE.

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CHRONIC HOSPITALS

EDMONTON GENERAL PLAN

DWG.

HOSPITALS

PUBLIC AND SEMI-PUBLIC

CHAPTER IX

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EDMONTON GENERAL PLAN

POLICE AND FIRE BUILDINGS PUBLIC AND SEMI-PUBLIC

DEPARTMENT BUILDINGS

DWG.

5 CHAPTER

traffic generation and site needs. The more important offices are those of the Treasury Branches, the Oil and Gas Conservation Board and Workmen's Compensation Board. Alberta Government Telephones personnel, presently occupying several buildings throughout the City, will locate in a major office structure to be built in the City centre. The Alberta Liquor Control Board maintains an office and warehouse and fourteen Alberta Liquor Stores throughout the City.

local and express transit, taxi and customer parking stalls, separated pedestrian and vehicular movement and more efficient entrance and exit ramps.

MUNICIPAL BUILDINGS The City Hall, located in the Civic Centre, houses offices of the City Administration. In addition, the City maintains buildings under the Parks and Recreation and Engineering Departments; the Edmonton Industrial Airport; telephone exchanges under the City Telephone System and buildings housing the Transit System, Tourist Bureaus and utilities. Expansion to these facilities will be related to the growth of the City and the standards of service demanded by the public.

FEDERAL GOVERNMENT BUILDINGS

PROVINCIAL GOVERNMENT BUILDINGS

The main Federal Government office building is located immediately north of the Provincial Government Centre, and other structures accommodating special Federal Government agencies such as the R.C.M.P., Post Office, defence establishments, Department of Transport and federally operated hospitals are dispersed throughout the City.

Aside from the Government Centre, which is discussed in more detail in the Central Area chapter, there are a number of Provincial buildings situated throughout the City that require careful planning with regard to their location,

Federal Government employment in Edmonton is expected to increase about 3 percent per annum during the next two decades. On this basis, there should be a doubling of office accommodation by 1981.

Chapter X

CENTRAL AREA INTRODUCTION

—

The Central Area is the heart of the City. It is on area where the most conspicuous land use is that of retail business surpassed in importance only by the complex of business and government office services. The Central Area attracts functions that serve the Metropolitan Area and the region as a whole and those which require considerable interpersonal contact.

—

Edmonton's Central Area may be defined more precisely by the following characteristics: — the greatest intensity of urban development, the highest land values, the largest and tallest buildings and, conversely, less open space than elsewhere.

—

the City's greatest concentration of pedestrian and vehicular traffic; the focus of the transportation network. an area with a combination of typical central uses, such as civic, provincial and federal governmental buildings, commercial and office uses, hotel and convention facilities, wholesale outlets and older housing and highrise apartments. an area that can be delineated by man-made and topographical features (the C.N.R. yards to the north and to a lesser extent the older parts of the City around 97th Street to the east, the North Saskatchewan River to the south and the Groat Ravine to the west). an area that serves the everyday needs of

THE CENTRAL AREA AT NIGHT. This view from south Edmonton shows the Central Area from the Parliament Buildings to the Macdonald Hotel.

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DIAG. 1 — THE CENTRAL AREA.

To maintain central Edmonton as an attractive communication and transportation centre where goods, services, ideas and opportunities may be conveniently and efficiently exchanged with other local, provincial or national centres.

financial, To encourage administrative, government and business headquarters to locate within the Central Area in order that services, professional or non-professional may be performed effectively and efficiently with close proximity to each other.

To make central Edmonton a specialized entertainment, cultural, educational, restaurant and hotel centre that will make a visit to the Central Area more informative and enjoyable.

To continue to make the Central Area attractive for people who work and live in it and patronize its basic functions by making available a wide variety of food, recreation, entertainment, personal services, medical and supporting activities.

To encourage central Edmonton to serve as an attractive high-density residential area for persons requiring a Central Area residence location.

To develop Edmonton's Central Area as a unique, attractive and dynamic urban centre to function as a symbol of the City and the great Northwest by serving as the stage for City, regional and national political, cultural, religious and other noteworthy events.

the people of the City and the specialized needs of the people in the region and the Province. The Central Area contains a core where its general characteristics are most pronounced. Employment in this core is expected to increase substantially. Careful planning of facilities for the Central Area is, therefore, very important in order that activities and functions may efficiently and effectively serve one another and the region.

EMPLOYMENT IN IMOUSANDS

DIAG. 2 — CENTRAL AREA EMPLOYMENT, 1961 AND 1981.

61%

Primary Secondary Office Comm. Comm Comm. 1111 1961 EMPLOYMENT

General Government Public & Industrial Comm. Office Semi-public

1;j:1 1981 EMPLOYMENT

7. To assemble Central Area activities into compact functional areas according to the intensity of dependence that the activities have on one another. These areas should be so arranged as to create the minimum amount of conflict to circulation of pedestrians, vehicles and goods between them within the limitations imposed by existing situations and developments.

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PRINCIPLES FOR THE CENTRAL AREA

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The Central Area street system should efficiently distribute traffic to destinations in the Central Area and should make it particularly convenient and accessible for people from nearby highdensity residential areas.

(c)

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(d)

(f) A network of special pedestrian facilities should be provided to ensure that people can walk freely and pleasantly throughout the Central Area. The following features should be considered: (i) Weather - protected pedestrian walkways to integrate the core retail area. (ii) Pedestrian malls and wider downtown sidewalks. (iii) Pedestrian ways and arcades in the middle of major blocks. (iv)

(ii)

Primary access and distributor routes connected to the bypass system.

(iii)

Multi-use pedestrian plazas.

(g) Vehicular a n d pedestrian conflict should be minimized by providing grade DIAG. 4 — PEDESTRIAN OVERPASS.

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(e) There should be three major categories of Central Area roadways. High capacity routes which bypass the Central Area.

DIAG. 3 — PEDESTRIAN MALL.

Vehicles, goods and people should be carried as directly as possible to multipurpose terminals. These would serve as parking termincls and would distribute people and goods directly to internal circulation systems and thus to their destinations.

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M. STREETS TO BE REMOVED PROPOSED STREETS RESTRICTED TO TRANSIT ONLY PROPOSED EXCLUSIVE TRANSIT LANES OTHER PROPOSED IMPORTANT TRANSIT STREETS POSSIBLE FUTURE SUBWAY AND STATION LOCATIONS PROPOSED PRINCIPAL TRAFFIC ACCESS POINTS

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EDMONTON GENERAL PLAN

DWG.

PROPOSED STREET MODIFICATION IN CENTRAL EDMONTON

CENTRAL AREA

CHAPTER X

(h)

(i)

Major parking concentrations should provide skywalks and tunnels for efficient pedestrian movement between parking facilities and nearby buildings.

(j)

The time limit for parking in the downtown is particularly important and should be provided according to the needs and destination of the driver. Short-term shopper and business patron parking should be restricted to brief and urgent needs and is desirable within 600 feet of the destination. Longterm employee parking should, wherever possible, be located within 1,000 to 1,500 feet of major destinations and outside areas of intense activity. Wherever possible, parking for executives and office patrons should be provided within or immediately adjacent to major office buildings. Parking for major residential buildings should be included on the site. Public mass transit and truck loading should be separated from private vehicular and pedestrian movement.

(k)

3. Compactness

separated pedestrian walkways such as skywalks and tunnels. Pedestrian traffic should be given preference over vehicular traffic centres of heavy pedestrian movement.

(a)

(b)

The major activities of the Central Area should be compactly arranged in order to facilitate transit and vehicular circulation between various parts of the Area, to permit development of workable plans for parking and major streets and to promote maximum ease of pedestrian movement between functionally related buildings. The various functional areas of central Edmonton perform diverse functions and should continue to be arranged in such compact groups as the Government Centre, the Civic Centre and major retail and office areas.

4. Development Appropriate to the Central Area (a)

Development locating in the Central Area should contribute effectively to the City and the region. Activities and functions which do not need a central location should be discouraged from locating here.

(b)

Areas around and within central Edmonton that are not needed for key Central Area functions should be developed with strong supporting activities such as centrally oriented apartments, motor hotels and special purpose offices.

(I) To minimize congestion in the downtown, the use of mass transit should be encouraged.

5. Street Furniture

2. Mass Transit

Street lighting fixtures, hydrants, signals and signs, telephone booths, waste containers, benches, shrubs and trees, planting boxes and similar features are the "furniture" of the street.

Mass transit is vital to the successful development and maintenance of a strong and viable Central Area. The provision of an underground rapid transit system with pedestrian connections to major retail and office buildings is an important future consideration. Surface transit systems will continue to operate on downtown streets and occasionally on special lanes and transit malls, but will ultimately play a supplementary role to underground rapid transit. (a) Transit operations in central Edmonton may include both rail and roadway transit by 1981. (b) During the period prior to rapid transit, all practical steps should be taken to encourage the increased use of surface public transit in the Central Area since it is an efficient method of conveying large numbers of people. The Central Area, and particularly the (c) core area, must be the focus of all mass transit operations so as to provide maximum possible service.

(a)

(b)

(c)

(d)

100

The appearance and function of street furniture should be considered as an overall design problem. Individual objects, signs, etc. should be effective, tastefully and functionally planned as part of an overall composition thus eliminating a duplicating and cluttering effect. Where possible, street furniture should be integrated with buildings on adjacent land. For example, fire hydrants, telephone booths, benches and street lighting fixtures could be incorporated into adjacent structures. A skillfully designed system of lighting should be implemented to enhance central Edmonton by giving dramatic and impressive effects. Safety, a sense of order and direction can be established through the following:

buildings, heights, widths, forms, shapes and architectural detail.

(i) Private businesses and governments should be encouraged to illuminate architecturally attractive buildings. Special attention should be paid to night-time activity centres.

(c) Entrance or "gateway" areas should be designed to provide a clear sense of approach, direction or destination to the Central Area. This would be obtained through:

(ii) A variety of street lighting may be used to distinguish the different types of streets. If possible, approach and internal circulation routes, major and local streets should be differentiated by the type of lighting. For example, streets in the Civic Centre could be characterized by lighting fixtures, differences in intensity, location and color. (iii)

(iv)

(i) The use of high design standard on approach streets, including the generous use of landscaped median and boulevard areas. (ii) The establishment of wide setbacks of buildings along streets at entrance points.

Street parking area and sidewalk lighting should be subdued within safety limits in areas such as Government and Civic Centres to obtain greater value and contrast through lighting of building exteriors, landscape features and sculpture. In areas bordered by commercial shops, prominence should be given to show window displays and their lighting. Less reliance could then be placed on direct lighting of streets, walkways, plaza surfaces and building facades.

(iii)

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

(iv)

Providing attractive public or semipublic buildings at entrance areas. Historic or symbolic landmark structures could likewise be located here to serve as focal points of each activity centre.

(v)

Sign control should be exercised and those that provide safety and directional information should be given special emphasis.

(d) Development should enhance and accentuate the main features of central Edmonton, such as the North Saskatchewan River Valley, the River bluff and the Central Area skyline as they are symbolic of the City.

(e) Effective use of signs is of special importance in the Central Area and their ability to transmit information must be preserved. Certain signs should be given a greater degree of visual importance than others. It is essential that "Stop signs," directional signs and signal lights be readily visible along a street. It is of lesser importance that "No Parking" or commercial signs be seen from a moving car.

(i)

Sites or "overlooks" along the bluff should be protected and new ones created so that views of the River Valley can be enjoyed by pedestrians in the Central Area.

(ii)

Landscaped plazas or malls should extend away from overlook points toward the downtown malls to provide visual and psychological connections with the River Valley.

(iii)

Buildings in the River Valley generally should be low to avoid giving the impression of reduced depth and height in the Valley and to protect views of the bluff from the River level.

6. Appearance and Symbolic Values (a)

(b)

Central Edmonton, as a symbol of the City, should be attractively designed in detail as well as in terms of overall skyline and visual arrangement so that a sense of beauty, cohesion and order can be given to the Central Area and reinforced as development takes place.

(e) Structures, signs, sidewalks, open spaces, pedestrian plazas and other features should be scaled to human requirements. Areas where large numbers of people congregate will require larger plazas than areas of little congregation.

Pleasant appearance requires attention to the creation and proper location of a number of selected "landmark" features, including: tall buildings, plazas, statuary and other features; variety in building and street design, grouping of

101

7. Characterization

Edmonton's Central Area should be developed as a unique and distinctive central area from central areas of other cities. (a) Central Edmonton should keep in touch with the past by naming and erecting parks, buildings and sculptures in honor of noteworthy pioneers of this district. Cultural values and the heritage of predecessors should be respected and expressed through appropriate decoration, sculpture and other means.

(d) Comprehensive redevelopment should call for placing underground all utilities and eliminating curb loading by providing consolidated loading and service facilities under or within a structure. (e) Blighted and deteriorated areas within the Central Area should be placed under large scale redevelopment programs supported by private financing and public renewal funds. If private capital

(b) Structures of historic and architectual

is able to assemble land economically, it should be permitted to do so. However, if land speculators inhibit redevelopment, the City should play an active role in assembling land through urban renewal schemes.

value should be noted and a policy established to insure their preservation. (c) The City's economic position with respect to the region, nation and the world should be assessed and displayed. Evidence of Edmonton's transition from a fur-trading centre to a leading agricultural centre and presently to the industrial and oil capital of Canada should be made evident.

9. Architectural Control Special architectural control should be exercised to enhance the quality of architectural design in the Central Area but in such a manner as not to limit variety or imaginative design.

8. Redevelopment (a) The quality of site design in downtown Edmonton can be significantly improved through large scale commercial and residential development. (b) Open spaces, attractive pedestrian courts, malls, vertical separation of people from cars and greater compactness and integration of related activities are possible through comprehensive design techniques on a large scale. These principles permit heavy concentration but without intolerable congestion.

10. Functional Areas The Central Area can be divided into functional areas as shown by the accompanying diagram. These functional areas are grouped and distinguished by their basic activities such as retailing, government offices, business offices, entertainment, hotel services, civic centre, housing and other activities. Each of these functional areas contain smaller land use districts as shown on the Central Area Plan.

DIAG. 6 - COMPREHENSIVE REDEVELOPMENT.

On the basis of this Plan, land uses can be most effectively located to the benefit of orderly development in the Central Area. The following is an outline of these functional areas together with principles to be observed for each area: (0) Core, Retail and High Density Office Centreâ&#x20AC;˘ (i) the large scale highest density and greatest compactness of development permitted anywhere in Edmonton should be encouraged in this district to ensure maximum opportunities for personal contact. â&#x20AC;&#x201D; parking should be designed as an integral part of building so that it can be associated with the destination of people;

102

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CENTRAL AREA

CHAPTER X

CORE AREA EXPANSION

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RIVER VALLEY UTILITIES INDUSTRIAL AREA WHOLESALE DISTRIBUTION

DIAG. 7 - CENTRAL AREA FUNCTIONAL USES.

placed in the least valuable part of the block; pooled to create larger, more economic parking areas or converted into storage areas if necessary. pedestrian facilities such as interior arcades, tunnels and walkways horizontally connecting blocks at different levels should be provided. vehicular access should be limited to one or two points so as to reduce vehicular and pedestrian conflicts. desirable building elements such as plazas, arcades, landscaped areas and entrances

(ii)

(iii)

104

should be located for a maximum aesthetic and functional effect. Maximum ease o f pedestrian movement should be provided between this area and other functional areas, such as the Government Centre and the Civic Centre. The shopping core and high-density office area should be integrated — the lower levels of office buildings should be designed for retail use. — integrated development should be encouraged through co-ordinated design, large scale development, multi-purpose

use of site, key off-street parking and loading sites and a system of pedestrian ways tying the area together. â&#x20AC;&#x201D; clubs, entertainment facilities, restaurants and convenient retail services and stores should be provided to encourage multi-purpose use of the site.

(ii)

Convenient and attractive weather protected connections (e.g.â&#x20AC;&#x201D;tunnel connecting parking garage to Chancery Hall) should be provided between major building groups.

(iii)

Good transit service is essential to adequately serve this concentrated area of employment.

(iv) Conveniently located visitor parking should be sufficient to meet demands.

(b) Civic Centre Edmonton's Civic Centre Plan combines commercial uses with the traditional concept of facing cultural and governmental buildings onto an open central square. The Civic Centre has deep roots in Edmonton's history and it has been a City objective in one form or another for over half a century.

(v) Good pedestrian connections should be provided between the Civic Centre and the retail and office centre. (c) Central Housing Area (i) The planning of the central housing area and individual site developments should fully exploit the locational and topographical site amenities of this area.

Civic buildings will be maintained as the dominant elements of the Plan and include the City Hall and extension, the Public Library, the Art Gallery, the Police Headquarters, the Magistrate's Court and the City Telephones Building generally located around a central park. The City Hall holds the dominant position at the north end of the square facing the Public Library at the opposite end. Commercial, governmental, cultural and residential buildings and public parks, malls and plazas are provided for balance, variety and beauty. An integrated coliseum complex is planned for the southeastern part of the Civic Centre and will contain a large arena, an exhibition hall, meeting rooms, theatre, tourist bureau and a large underground parkade. Senior government buildings include the Land Titles Building, a Federal Post Office Terminal Building and a proposed Court House. Major office towers placed in the Centre are located to identify the heart of the City and the Civic Centre Area.

(ii)

Good pedestrian connections should be provided between the central housing area and the government and retail employment centres.

(iii)

Central housing area traffic and circulation should not conflict with downtown bound traffic, and should be developed accordingly. Separation of local and downtown traffic will help to preserve the capacity of major carriers and will help to protect the residential character of this area.

THE CENTRAL HOUSING AREA. There is ample room for future high density development in this area. In the background is the wholesale distribution area.

The Civic Centre is designed not only as a convenient and pleasant place to live, work or visit but also as a place for meeting, leisure and entertainment. The Centre is to have beauty and dignity, giving form to the City and a richer life to its citizens. It will strengthen the existing downtown activities and encourage their expansion. (i) Sites in the Civic Centre should be generally spacious with attractive landscaping to provide a desirable symbolic and aesthetic effect.

105

KEY

EXISTING BUILDINGS PROPOSED BUILDINGS

..........

...

PARK LAND

=11

EDMONTON GENERAL PLAN

DWG.

CIVIC CENTRE

CENTRAL AREA

CHAPTER X

THE CIVIC CENTRE IN 1950.

THE CIVIC CENTRE, 1966. New construction includes the Centennial ,Building. A 30 to 35 storey complex is planned by Alberta Government Telephones in the left foreground.

107

(iv) Adequate off-street parking (particularly underground parking) should be provided with each development to protect and improve the amenities of this residential area. (v)

(vi)

(i) Development of the sites within this area should be characterized by attractively designed buildings, pleasant open spaces and extensive landscaping that will enhance the view of individual buildings and the Centre as a whole.

High-rise apartments are appropriate to the central housing area but due regard should be paid to the River Valley contours and the desirability of preserving dominance of the retail-office centre and the Civic Centre.

, (ii) Building heights and designs should be moderated to preserve and, if possible, enhance the dominance of the Legislative Building. (iii) Good all-weather pedestrian connections should be provided within the Government centre.

High standards of architectural and landscape design are necessary to achieve a pleasing urban character. Existing trees should be preserved or planned for replacement, and additional trees planted to soften the otherwise raw and cold expanse of concrete, pavement and masonry walls.

(e) Special Purpose Office Area The major functions of this area are to provide sites for office structures, highdensity apartments and apartment hotels. In addition to these major functions, civic and cultural institutions, restaurants, limited convenience retail services and hotel facilities should be allowed. Some of the major principles to be observed in the development of this area are: (i) Special side yard regulations are required in order to: â&#x20AC;&#x201D; preserve the visual dominace of the Government centre and the core area. â&#x20AC;&#x201D; hold traffic generation in these areas to moderate levels (it will be difficult to provide a high level of transit service for this area in the forseeable future).

(d) Government Centre The Government centre is located between 106th and 109th Streets, 99th Avenue and the River. The central element of the centre is the Legislative Building. The Government plan must recognize the concepts of superblocks and boulevards in order to consolidate and integrate existing and future government functions and buildings within the centre. The centre should be distinguishable from the surrounding uses and other activities in this area should be supplemental and supporting to this primary function. THE PROVINCIAL GOVERNMENT CENTRE.

108

low density motel and hotel development, small special purpose offices, discount and furniture stores and a farmer's market. The area will also serve as a location for major off-street, all-day parking. This area should be developed as an area providing specialized goods and services not found in other parts of Edmonton.

â&#x20AC;&#x201D; maintain an environment that will be attractive to apartment and special purpose office construction. (ii)

(iii)

Adequate off-street parking should be provided, serving individual buildings or associated groups of buildings. Developers should provide underground or elevated parking structures, leaving open space for use by the inhabitants of buildings.

(i) Buildings and site development in this area should be held to relatively low densities to:

Buildings containing both residential and non-residential uses should not permit residential use on the main floor except in the case of accommodation primarily for transient use.

(f) Wholesale Distribution Area In this area, wholesale soles and distribution is the primary activity. Other activities, such as printing, light manufacturing and processing, automotive sales and repair, building materials, supplies and others benefiting from and requiring close direct contact with the downtown should be permitted here. (i)

Activities in this area should be concentrated and prevented from expanding beyond its present limits.

(ii)

Building density and site development should be held at a low level.

(iii)

Adequate off-street truck loading and parking space should be provided for each development.

(iv)

The amount and type of outdoor storage should be limited and unsightly storage should be screened from street view.

â&#x20AC;&#x201D;

preserve visual and physical dominance of the Civic Centre.

â&#x20AC;&#x201D;

assure adequate, spacious site development with room for offstreet parking, building setbacks, landscaping and other features that will maintain pleasantness a n d provide a sense of approach into downtown Edmonton.

(ii) Good pedestrian access should be provided from this area to the Civic Centre. (h) Institutional-Housing Area This area contains major hospitals and related residential and office development. Secondary uses, including retail services for people working or living in the area should be permitted.

(g) Motel and Special Purpose Office Area This is an area of old housing, relatively

(i)

Development of sites within this area should result in a spacious, pleasant appearance, compatible with intended function of the area as an institutional and housing setting.

(ii)

Commercial and office activities should be confined to locations bordering Jasper Avenue, whereas housing sites should be developed to take advantage of River Valley

views.

109

Chapter XI

URBAN RENEWAL INTRODUCTION

the replacement or provision of public utilities except public buildings. From the Provincial Government up to 30 percent of the shared costs may be available and, with Provincial Government approval, the Federal Government may contribute up to 50 percent leaving the municipality to meet 20 percent of the sharable costs. Loans are also available from the Federal Government to assist in meeting the municipalities' cost in implementation and to help private property owners rehabilitate their properties.

Urban renewal is the term used for any private or public action or combined action which renews, repairs or protects the urban community from blight while providing the most desirable social, physical, economic and visual results. Blight may be the deterioration of a single dwelling, a group of buildings or an entire neighbourhood. Blight is caused by dilapidation and aging of structures, poor maintenance and obsolescence of dwellings, overcrowding, lack of adequate community facilities, faulty land use and street patterns, air pollution and noise or the disrupting effects of arterial transportation systems. These physical and economic conditions are compounded by social problems of poor health, disease, juvenile delinquency and low income. No part of the urban community is immune from blight.

Methods The urban renewal process involves three basic techniquesâ&#x20AC;&#x201D;conservation, rehabilitation and redevelopment. Conservation is concerned with the maintenance of minimum standards necessary to guarantee a productive use of facilities during their normal life expectancy. Preservation, often confused with conservation, is

Municipal Responsibility As the City ages, municipal vigilance is increasingly necessary to protect the older parts of the community from becoming a financial burden. It is evident that blighted neighbourhoods require a disproportionately high share of municipal services while contributing minimally toward municipal tax revenue. A balanced urban renewal program, under municipal guidance and co-ordination, affords an opportunity to both redevelop or rehabilitate existing blighted conditions and prevent the future occurrence of deterioration. Such a program can also provide a physical and social environment specifically planned to meet modern standards.

Available Assistance Under the National Housing Act, financial assistance is available to a municipality, with Provincial approval so that it may carry out comprehensive surveys of existing conditions to determine the type and extent of urban renewal action required. Assistance is available toward the cost of acquisition and clearance of land within approved scheme boundaries, the relocation of displaced residents and businesses and

DIAG. 1 - CHARACTERISTICS OF QUEEN'S AVENUE, McCAULEY AND THE ALEX TAYLOR DISTRICTS COMPARED WITH THE REST OF EDMONTON. DEVELOPED CITY AREA

â&#x20AC;˘

CITY TAX REVENUE

CITY POPULATION

PHYSICAL ASSAULTS & SEXUAL OFFENCES

JUVENILE PROBLEMS

TUBERCULOSIS

IN MORTALITY

RESIDENTIAL FIRE CALLS 5

PERCENTAGE OF TOTAL FOR CITY

110

PHASE 2 PREPARATION OF SCHEME

PHASE I THE URBAN RENEWAL STUDY

THESE DILAPIDATED BUT STRUCTURALLY SOUND DWELLINGS WERE PURCHASED BY THE CITY OF EDMONTON PHASE 4 PUBLIC HOUSING

when extreme conditions of obsolescence or incompatibility of land uses do not permit economic rehabilitation. Land use and population changes effected by redevelopment would be consistent with the policies of the General Plan.

PHASE 3 IMPLEMENTATION OF SCHEME

THE EDMONTON SITUATION FEDERAL ASSISTANCE

In Edmonton there are no heavy concentrations of blighted property equivalent to those existing in many of the older, more densely populated cities of North America. Nevertheless, the amount of overcrowded and dilapidated housing

PROVINCIAL ASSISTANCE MUNICIPAL ASSISTANCE DIAG. 2 — COST SHARING ARRANGEMENTS OF URBAN RENEWAL PROGRAMS.

THROUGH THE USE OF MUNICIPAL FUNDS THESE STRUCTURES WERE REHABILITATED TO PROVIDE HOUSING FOR LOW INCOME FAMILIES.

more directly concerned with prolonging use beyond the normal life expectancy. Conservation involves both active private participation in home improvement and continuous programs of public works improvements and maintenance of community facilities on a neighbourhood basis to maintain and encourage private investment throughout the district. Rehabilitation, designed to raise general environmental standards of areas that do not require massive clearance and redevelopment, may involve the clearance of scattered pockets of blight, the provision of adequate community services that contribute to satisfactory living and working conditions and the elimination of undesirable nuisance factors. Adoption and implementation on a comprehensive basis of a Housing Occupancy and Maintenance Bylaw will improve the physically substandard condition of the community. Redevelopment, being the most drastic and generally the most expensive of the three techniques involves clearance of building thus freeing the land for new development. Clearance is only warranted

- Nor

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in proportion to the total housing stock in Edmonton is greater than the average for all Canadian cities exceeding 100,000 population.

4.6 rooms (including full basements) compared with City-wide averages of 3.6 persons per 5.0 rooms.

In 1963 and 1964, urban renewal studies were undertaken within the context of the General Plan to examine the quality of housing stock in Edmonton and to seek appropriate methods of improving it. These studies were undertaken by the City Planning Department, under the terms of the National Housing Act (1954) with a grant administered by the Central Mortgage and Housing Corporation and with the approval of the Minister of Municipal Affairs of the Province of Alberta.

In addition a survey of basement, attic and lean-to rooms has been undertaken to determine how many of those originally intended for storage or only occasional occupancy now being used permanently as living quarters, would fail to meet minimum standards of health and safety. The survey (from a ten percent sample) revealed that a total of 2,476 dwellings are estimated to fall within this category, and a further 1,467 dwellings are located in unfavourable residential environments.

In conjunction with this study, a lot by lot survey of comparative housing conditions throughout the older districts shows that 4,143 residential dwelling were seriously dilapidated. These buildings, representing six percent of the total housing stock (excluding dwellings in industrial areas) with an average assessed value just over $2,000 each, are scattered throughout the City. Their structural condition is such that they are considered unsuitable for rehabilitation and should be replaced.

In Edmonton today, 32,700 people are in need of better housing. This represents the total population in dilapidated dwellings, substandard basement, attic and lean-to rooms and poor environment plus the number of persons who should be re-accommodated as "overspill" from overcrowded buildings. * In other words, 9,943 families are in need of decent homes either through the replacement or rehabilitation of existing dwellings.

Eighty-six percent of the run-down buildings are occupied by only one family but a surprisingly high proportion (forty-five percent) is owned by absentee landlords. The average family income (including the income of working wives, family allowances and room and board contributions) is $3,336, as compared with to $5,400 for all City families in the 1961 Dominion Census. One sixth of the heads of households are pensioned and another sixth are unemployed, while twelve percent of all the families are on either Provincial or Municipal welfare assistance. But the most disturbing statistic is to be found in the large number of resident owners making high mortgage repayments: 564 householders (sixty-two percent of those repaying mortgages) make monthly payments in excess of $80, in addition to modest property taxes.

The problem is most acute in the River Valley where 40 percent of all buildings are seriously run-down and a further 41 percent are in need of repair and modernization. In the Alex TaylorMcCauley District, 4,500 people would benefit from better living conditions. The inadequate size of residential structures in Jasper Place has contributed towards overcrowding in 29 percent of all surveyed buildings (1,086) and in Strathcona (Garneau) 9 percent of the total population occupy unfit basement rooms. Excluding the demand for housing created by normal City growth, the urban renewal study results indicate that a total of 12,839 dwellings will be needed to complement the urban renewal program based on the following components:

For the purpose of the Dominion Census, a crowded dwelling is defined as one in which the number of persons exceeds the number of habitable rooms. However, having regard to the high proportion of buildings occupied by only one family, there is need to make a distinction, in terms of hardship, between overcrowded multiple family dwellings and single family dwellings. This distinction warrants an adjusted standard, whereby single family dwellings are deemed to be overcrowded when the average number of persons per bedroom exceeds two. By this standard, 3,751 residential buildings within the study area are rated as overcrowded, excluding those in poor structural condition, and an average of 5.0 persons per household occupy

—

replace run-down buildings

4,574

—

relieve overcrowding

1,426

—

replace substandard basement and attic accommodation

2,476

— —

replace residential uses in industrial areas replace houses to be cleared other than in industrial areas

1,547 807

*54,340 citizens live in run-down and/or overcrowded conditions but not all families in overcrowded buildings have to be rehoused to resolve the problem, i.e:, the relocation of one family from a shared dwelling would leave ample room for the other.

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EDMONTON GENERAL PLAN

DWG.

CONDITION OF HOUSING

URBAN RENEWAL

CHAPTER XI

—

implement neighbourhood improvement

300

—

clearance for public housing sites

118

—

clearance for M.E.T.S. proposals _

1,302

—

university campus expansion TOTAL DWELLINGS TO BE REPLACED

sonoble rent levels to those persons unable to afford a decent standard of accommodation and to offer lodgings to those people displaced by urban renewal programs. Thus public housing forms an integral part of the urban renewal process.

289 The National Housing Act provides for financing of public housing through both grants and loans which are bestowed after applications are made by the municipality through the Provincial Government to the Federal Government. The rent scales are usually set by an independent housing commission appointed by the Provincial Government. Rent is levied in two ways. The rates charged are based on a full recovery principle whereby sufficient payments are charged to amortize the project and recover maintenance costs; a subsidized rental plan is also used whereby the levy is related to the tenant's ability to pay. The amount of the subsidy and the development of public housing is shared by the three levels of government on the following basis: Federal Government-75 percent, Provincial Government-15 percent, City-10 percent.

12,839

NEIGHBOURHOOD IMPROVEMENT An integrated and co-ordinated approach to alleviate blighted and deteriorated areas within the City limits is being followed, employing conservation, rehabilitation and redevelopment techniques. Since housing conditions in Edmonton do not warrant the severe upheaval that total redevelopment would create, "neighbourhood improvement" is proposed as the spearhead of the urban renewal program for older residential districts of the City.

Forms of Public Housing

A CHARACTER WORTH PRESERVING.

The Large Project—Located on five acres or more, the large project is a planned development comprising a variety of accommodation such as terraced dwellings, patio housing and apartments designed in a manner to provide the optimum residential amenities and pleasing aesthetic appearance. The project development provides the maximum number of dwelling units at minimum cost but it can create social problems by segregating the tenants from host community.

The Semi-Integrated Project—This project is a more sophisticated form of public housing and would be used in conjunction with the neighbourhood improvement programs. This form of public housing replaces existing pockets of dilapidated buildings throughout a neighbourhood. Patio housing or small groups of terraced dwellings are most suitable for this purpose and would not cause conflict with the established character of the district or reduce the property value in the immediate vicinity. Higher construction costs could be expected but the building becomes an integral and accepted part of the neighbourhood. It is this form of public housing that is considered most suitable for the City of Edmonton.

Conversion of Suitable Dwellings—The conversion of suitable dwellings into public housing units has considerable merit where a predominantly residential area is in transition to another land use. By renovating the

Neighbourhood improvement will consist of the provision and enforcement of a Housing Occupancy and Maintenance Bylaw, the enforcement of City bylaws pertaining to health and safety, the provision of incentives such as tax exemptions and loans to stimulate home improvement, the replacement of pockets of deteriorated and worn-out housing, the improvement of schools and parks and using the National Housing Act to gain financial assistance for home improvements and refinancing.

PUBLIC HOUSING The urban renewal process inevitably involves the provision of publicly assisted housing. Each time an urban renewal scheme is implemented, the amount of substandard housing stock is reduced. Public housing is necessary to provide safe, decent accommodation at rea-

114

Principles of Urban Renewal

interiors for rental purposes, the resulting effect is a reduction of the amount of substandard housing in Edmonton without removing low rent accommodation at the same time. The conversion of such dwellings also helps to avoid the stigma sometimes attached to public housing since there is little external difference between public and private homes.

Urban renewal schemes afford the opportunity for older districts to be rejuvenated according to the development policies of the General Plan, and contribute to the economic stability of the City.

Urban renewal must be a continuous process to combat and prevent the premature occurrence of new outbreaks of obsolescence. With the use of all proven techniques, vigorous programs are necessary to encourage rehabilitation and conservation.

Projects must be co-ordinated and correlated with long-range city-wide planning (for example, transportation and parks) to ensure orderly city growth and redevelopment.

Public support must be actively solicited for urban renewal because its ultimate success is dependent upon active and co-operative public participation.

EDMONTON'S URBAN RENEWAL PROGRAM There are three phases to the development of an urban renewal program. Firstly, there is an urban renewal study. Such a study was initiated in Edmonton and its results were approved in principle by City Council in March 1965. In August and September of the same year, approval of this study was given by both the Provincial and Federal Governments. Secondly, there is the preparation of urban renewal schemes for those areas designated by the study as sufficiently blighted as to require renewal effort. Plan preparations for certain areas in Edmonton have begun and will become a continuous process as the City grows and evolves. Currently two schemes are under way: the Civic Centre Scheme and the Boyle Street Rehabilitation Study. It is expected that neighbourhood improvement schemes will follow after the completion of the Civic Centre and Boyle Street Schemes. Thirdly, there is the implementation of the scheme. This involves the process of actually carrying out the detailed plans of a scheme in a series of fiveyear programs. The urban renewal program in Edmonton will eventually reach the full scale of operation â&#x20AC;&#x201D;study, plan and implementation. When this is achieved the objectives of urban renewal will then be on the way to realization.

Objectives of Urban Renewal 1.

To eliminate factors contributing to urban blight in industrial, commercial and residential districts within the City and to prevent recurrence of these factors; to provide, by means of a comprehensive and balanced urban renewal program, an attractive, healthy and stimulating urban environment conducive to the physical, social and economic well-being of its habitants.

IN THIS INSTANCE, ACTION BY PUBLIC AUTHORITIES TO REMOVE OVERHEAD WIRING WOULD GREATLY ENHANCE THE AMENITIES OF THE DISTRICT AND STIMULATE PRIVATE RENEWAL.

5. A balanced program of public and private action must be initiated by urban renewal planners to provide residential accommodation at acceptable minimum standards, to promote neighbourhood characteristics necessary for the health, safety and welfare of the inhabitants and to regenerate interest in older districts to retain their useful life as part of the urban community.

To provide the means whereby all citizens of the community, and specifically those affected by urban renewal schemes, have access to decent, safe and sanitary accommodation at rents that they can afford to pay according to their economic ability.

115

Chapter XII

TRANSPORTATION INTRODUCTION

To maximize transportation safety.

A transportation system is one of the most important influences on the development of urban areas. The use of land, the direction of growth and the distribution and density of population are strongly influenced by the form and character of transportation facilities. Because of this close relationship, it is essential that the transportation system be carefully co-ordinated and integrated with land use and other development proposals.

To minimize the operating costs of the transportation system .

To minimize capital costs. To promote the development and intensity of the desired land use pattern by the provision of suitable transportation facilities.

t. To balance the capacity of the transportation system with the requirements of the land use areas served.

A number of factors indicate that the City will experience a considerable increase in traffic. Of particular importance is the indication that between 1965 and 1981 population will increase by some 200,0-00, employment in the downtown area will double and vehicle ownership in the Metropolitan Area will increase from 151,000 in 1965 to 255,000 vehicles by 1981.

Principles for Urban Transportation 1.

The planning and design of the various elements of the transportation system should

DIAG. 1 — CORRIDOR TRAFFIC, POPULATION AND EMPLOYMENT.

In addition to the downtown area, other large land users such as the University of Alberta and major shopping centres will generate large volumes of traffic. Traffic movements between work, home, service and leisure-time areas will increase and consequently the overall transportation system must be designed to efficiently accommodate these increased volumes of traffic, particularly during peak periods of travel. Expansion and improvement of the existing transportation system will be required through the provision of new facilities such as freeways, arterials, bridges and eventually some form of rapid transit.

123. i

Constructing roadway and other transportation facilities on an individual or piecemeal basis is costly and inefficient compared to an orderly, long-range program which includes and co-ordinates all systems of transportation. It is, therefore, most important that a comprehensive plan be adopted to ensure a co-ordinated and balanced system of transportation.

KEY 111■•• Trot f ic Flow 1961 Tref fic Flow 1981

Objectives for Urban Transportation

11 9961 8 , Population

1. To minimize travel times between land use areas.

1, 99

Employment

--- Corridor Boundary

116

help implement General Plan policies regarding direction of urban growth; location, type and intensity of land use; and population density and distribution. 2.

Transportation planning should consider all modes of transport for the movement of people and goods within the Metropolitan Area.

Rights-of-way for the various proposed transportation facilities should be protected by development scheme by-laws. Where practicable and feasible, land should be acquired in advance.

The transportation system should be subject to review and adjusted where necessary as a result of urban growth, innovations in technology or improvements in financing methods.

An effective and efficient regional transportation system should be provided in co-ordination with the urban network.

Specific transportation proposals should be subject to a cost-benefit analysis to determine the relative costs and benefits between alternative schemes.

THE ROADWAY NETWORK Edmonton's street system consists primarily of a grid network with thoroughfares radiating from the City centre. The lack of perimeter roads and bridges forces crosstown traffic to use these radials, thereby adding to Central Area congestion. As a result, serious capacity deficiencies exist in the Central Area, especially at bridges.

TRAFFIC CONGESTION. Narrow bridges and a lack of cross River bridges are causing serious bottlenecks.

Objectives for the Roadway Network

The main streets, originally designed with thought to the future, have become inadequate for today's needs. The narrow bridges and main intersections controlled by traffic circles or lights are causing serious bottlenecks. Thoroughfares have no room for expansion, consequently new rights-of-way will have to be acquired. New subdivisions are now designed with broad rightsof-way for primary streets and this system will have to be adopted in the older areas of the City to provide an adequate roadway network. The proposed roadway system will provide new crosstown routes and major routes leading to the City centre with adequate provision for express bus service and additional Central Area parking terminals.

To provide a functionally differentiated system of roads â&#x20AC;&#x201D; local streets, collectors, arterials, expressways and freeways â&#x20AC;&#x201D; to accommodate existing and projected traffic flows.

To establish a bridge and roadway staging program in conjunction with the future land use plon, the public transportation plan and an adopted program of financing.

To explore the use of air rights over railway land, particularly in the downtown area.

Principles for the Roadway Network

Historically, it has been the responsibility of local government to provide an adequate street and highway system. In planning for this network, consideration should be given to the following objectives and principles.

117

The planning and design of roadways should take into consideration the nature of adjacent land uses and the volume and direction of traffic generated based on population and employment of the area to be served.

The priorities or staging program for roadways and bridges should be determined on

the basis of a rational analysis of total costs and total benefits expected from proposed prog rams. 3.

U7 a

Central Area access and by-pass routes should be important elements in the roadway plan.

121

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A perimeter or outer ring road system should be developed to accommodate traffic bypassing the City.

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Access to major thoroughfares should be properly controlled to increase efficiency of operation.

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Major intersection conflicts should be reduced to a minimum by providing suitable grade separations, channelization, appropriate restrictions on turning movements, directional signals and efficient signal timing.

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Roadways and other transportation facilities should be carefully planned so that a minimum of River Valley parkland is lost to roadways. When park area is required for road rights-of-way, suitable parkland should be made available in the area if it is determined that there is consequently an inadequate supply of parks and open space.

•

DIAG. 2 - THE M.E.T.S. ROADWAY SYSTEM.

posal was a freeway system and an associated arterial network providing for: — —

The Provincial highway plan and roadway plans of adjacent municipalities should be co-ordinated with the Edmonton roadway plan through the Edmonton Regional Planning Commission.

— —

Major roadways should be fully landscaped and be sympathetic to topography and surrounding land uses. Preference should be given to the use of depressed grades to preserve vistas and reduce noise.

—

high-speed, non-stop movement of crosstown traffic. efficient access to the downtown area from all parts of the City. the diversion of through traffic from downtown streets. by-pass facilities to accommodate the movement of traffic between Provincial highways connected to this City. facilities for express bus operations and future downtown rail rapid transit routes.

The freeway system consists of a highspeed, high-capacity, limited access freeway loop circling the downtown area with five legs radiating out from this loop serving the five major corridors of traffic movement. Within the downtown freeway loop is an inner distributor ring giving access to the core of the central business district and adjacent parking facilities. This ring also allows for a by-pass movement for traffic within the Central Area and, on a stage development basis, could help to by-pass through traffic until such time as the downtown freeway loop is completed.

The Metropolitan Edmonton Transportation Study The Metropolitan Edmonton Transportation Study was undertaken to assess the extent of the local transportation problem and to provide a transportation plan for 1981 and beyond. Based on projections of growth of population and employment, land use, incomes, travel habits, etc., a plan to adequately service the expected traffic flows was established. Since this study was completed in 1963, further analysis of the basic input data (population, employment, land use, corridor movements, etc.) and freeway alignments has generally supported .the original proposals as contained in the M.E.T.S. report. Cost estimates for land and construction have, however, risen appreciably.

The design of freeways established a level of service that would allow traffic volumes during the peak period of 1,500 vehicles per lane per hour. The freeway sections were designed for either four or six moving lanes with allowance for ultimate expansion to eight moving lanes. Improvements to other portions of the roadway network either to provide better connections to

The principal element of the M.E.T.S. pro-

118

Principles of Public Transportation

freeways or to generally increase capacity through street widening, channelization of intersections, overpasses, etc., were also recommended.

1. The bus transit system should provide: —

additional distribution routes throughout the Central Area to serve a larger part of the area and to provide more route capacity for transit vehicles.

—

special bus lanes and loading areas on freeways to relieve traffic conflicts.

—

transit malls for the exclusive use of transit vehicles and pedestrians in the downtown area to relieve congestion and expedite transit service.

—

additional express bus routes where feasible to minimize travel time.

PUBLIC TRANSPORTATION Mass movement of people is most effectively achieved by a system of public transportation. This applies particularly to peak travel periods to and from the Central Area. The Edmonton Transit System consists of a fleet of 340 buses powered by gasoline, diesel, propane and electricity. Continued urban growth will necessitate more and longer bus-runs such that by 1981 the number of buses will have to be doubled. New buses are primarily diesel-fueled and since the majority are destined for the Central Area, this will not only increase downtown congestion but will also create additional fumes and noise. The number of transit riders exiting from the Central Area during the evening peak hour are expected to increase from 7,000 in 1961 to 19,000 in 1981. To accommodate this increase, an improved transit system will be required, particularly in the downtown area. Downtown circulation will be improved by the provision of wider streets, one-way streets and restricted street parking.

2. Neighbourhood design should integrate transit routes and facilities with shopping centres and apartment areas. 3., Concentration of population should be en/ couraged near stations and route corridors to maximize the effectiveness of the transit ' system.

Approximately forty percent of the peak hour traffic leaving the Central Area is through traffic. The proposed system of Central Area by-pass routes and the peripheral ring road system will divert a large portion of this traffic. The freeway and bridge program will allow for additional express bus service with park-andride facilities along the route.

Downtown transit patrons should be protected from severe winter temperatures by the provision of heated bus stop shelters of adequate size. Suitable shelters should be provided at other major collection points.

Public transportation should be subsidized to encourage greater use of transit facilities as the community benefits from the reduction of street congestion and land area required for roads and parking.

The location and programming of public transit facilities and roadways should be coordinated to avoid conflict and unnecessary duplication.

Rapid transit branch lines should converge to the Central Area to most effectively serve mass downtown travel. Freeways should bypass the Central Area to avoid congestion due to crosstown travel.

To attract customers, the design of suburban rapid transit stations should incorporate adequate parking and automobile passenger loading facilities in addition to feeder bus connections.

Objectives of Public Transportation 1.

To provide a high level of service in order to attract sufficient patronage to operate efficiently and effectively.

To provide an adequate all-weather public transportation system to effectively serve the travelling public during peak and off-peak periods.

To provide an efficient public transit system that will attract a maximum number of passengers and thereby minimize downtown congestion caused by private vehicles and parking space requirements.

To plan for a rapid transit system in detail, so that land for rights-of-way stations and associated parking areas may be reserved and acquired in advance.

Rapid Transit Study A rapid transit system is proposed for Edmonton as part of a balanced transportation network. In 1963 Canadian Bechtel Limited prepared a rail rapid transit plan for the City as a mode for mass transportation to handle peak period movements to and from the Central Area.

To guide land use development in the most advantageous manner with respect to future transit routes.

119

URBAN ROAD CLASSIFICATION

SERVICE ROAD

4' I

SERVICE ROAD

20'

26' -.RAMP

:MPH I 10' 10'

BUFFER STRIP - 100' - 150' -"-

12'.

12'

12' 6'1 8' 164,12: SHOULDERS EMERGENCY PARKING

12'

10'

20'

10'

BUFFER STRIP 1-••- 100' - 150'

DEPRESSED FREEWAY AT INTERCHANGE

I 22' SERVICE . ROAD

10'

10' I 12' I 12' I 12' 1 12'T.7,7 EMERGENCY PARKING

22' SERVICE ROAD

UNDIVIDED ARTERIAL FREEWAYS

ARTERIALS

Function

To serve long-trip traffic between large residential areas, industrial or commercial concentrations and the central business district.

To connect major traffic generators and distribute traffic from freeways.

Traffic

Heavy traffic volumes under free-flowing conditions.

Large volumes under relatively uninterrupted movement.

Location

Frequently constructed on new alignments with connections to rural highways. Located to serve as a buffer between different land uses where possible.

Desirably located on community and neighbourhood boundaries. Should bypass major shopping centres, parks and other homogeneous areas.

Intersections

Grade separated. Ramps generally one mile apart. No traffic signals.

Intersections at grade. Channelization and traffic signals at major intersections.

Parking

No parking, unloading of goods or pedestrian traffic is permitted.

Parking and unloading is prohibited where through movement is affected especially at rush hours.

Land Service

Adjacent lands served by frontage roads parallel to freeway.

Adjacent land generally provided with service roads. Some direct access when conditions permit.

Only

All types including trucks. Both express and local bus service.

Vehicle Types All types including transport trucks. express bus service without stops. Moving Lanes 4 to 8 Divided.

4 or 6 Divided or Undivided.

R/W Width

100' - 150'

250' - 500'

Average Daily Volume Over 20,000

5 - 30,000

Average Speed

45 - 55 M.P.H.

30 - 40 M.P.H.

Connects to

Freeways, Arterials

Freeways, Arterials and Collectors

120

5'15'

10'

12' 12' PARKING

10' 1 6' 515

COLLECTOR ROAD

5' 5'1 9' 1 12'

9J5' 15'

PARKING

RESIDENTIAL ROAD

•• v •

COLLECTORS

LOCALS

To connect secondary traffic generators and to collect and distribute traffic from arterials.

destination along its length and no through traffic.

Traffic movement and land access of equal importance.

Local traffic only.

Desirably located on community and neighbourhood boundaries. Should bypass secondary traffic generators such as neighbourhood business and shopping centres, high schools, etc.

Located within neighbourhoods to provide direct access to residential, commercial and

Intersections at grade with traffic signals at major intersections. A

Primarily carries traffic with an origin or

industrial properties. Intersections at grade with signs at major intersections.

No parking restrictions except during peak hours when required.

Parking may be restricted to one side on narrow streets.

Generally full access to all adjacent property.

Direct access to all adjacent properties

All types in commercial and industrial areas. In residential areas, passenger and service vehicles. Local bus service.

All types in commercial and industrial areas In residential areas, passenger and service vehicles. No bus service.

2 or 4 Divided or Undivided.

1 or 2 Undivided.

80' - 110'.

50' - 66'.

1 - 12,000.

Variable

20 - 30 M.P.H.

15- 20 M.P.H.

Arterials, Collectors and Local

Collectors and Local

, A

114.

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Hwy. No. 14

J Hwy. No. 14

63 Ave.

51 Ave. 45 Ave.

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EDMONTON GENERAL PLAN

DWG.

EXISTING ROADWAY NETWORK

TRANSPORTATION

CHAPTER XI I

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EDMONTON GENERAL PLAN

DWG.

M.E.T.S. ROADWAY PLAN

TRANSPORTATION

CHAPTER XI I

be doubled by adding more cars to the system or adjusting the running schedules.

PARKING Additional parking capacity should be provided throughout the Central Area in conjunction with proposed roadways and anticipated traffic volumes. Later, as express bus and rapid transit routes are developed, outlying parking facilities should be provided for park-and-ride patrons destined for the Central Area. The need for increased downtown roadway capacity will decrease curb parking and necessitate additional off-street parking. Trends in downtown parking are indicated in the following parking surveys for the area bounded by 93rd Street and the C.P.R. tracks, and 96th Avenue and the C.N.R. tracks.

KEY

STATIONS

On or Above

DOWNTOWN PARKING SURVEYS

Grade Level Below Grade Level

Year

1952 1961 1965

DIAG. 3 — BECHTEL RAPID TRANSIT PLAN.

—

a double track electrified railway protected by interlocking automatic signals.

—

an exclusive grade separated right-of-way with depressed, underground or elevated grades.

—

six branch lines to converge and pass through the Central Area with underground tracks and stations in the Central Area.

—

twenty-five miles of rail line with twenty-six stations placed about a mile apart with provision for branch line extensions.

—

a five-minute headway between trains during peak periods.

—

a 50 m.p.h. running speed, requiring 10 minutes to reach downtown from a terminal station.

—

138 transit cars able to move 31,000 people per hour to the Central Area. Capacity may

4,115 11,065 15,431

10,011 15,417 20,118

In 1961, the downtown core area contained some 14,000 parking stalls. Assuming that downtown transit patronage will increase to 35 percent of total downtown movement then 1981 parking requirements are estimated to be 23,400 spaces, exclusive of residential needs. This consists of 14,500 long-term employee parking spaces generally located on the fringe area and 8,900 short-term shopper and patron parking spaces located as close as possible to the buildinas they serve. Multi-level parking is expected to account for 18,000 stalls, the remainder generally consisting of curb and private parking. A high level of rapid transit service could reduce the above requirements considerably.

Principal design features consist of: a modern and efficient system to attract a maximum number of commuters.

5,896 4,352 4,687

Off-Street Total Parking

During the thirteen-year period, curb parking decreased by some 1,200 spaces while offstreet parking increased by 11,300 spaces. Multi-level parking consisted of 2,600 stalls with an additional 2,000 stalls constructed during 1966.

Alignments of branch lines were determined by such factors as rights-of-way locations, travel characteristics and growth and population forecasts. Since this is a conceptual plan, further feasibility and economic studies will be required to co-ordinate routes and rights-of-way with accepted M.E.T.S. roadway proposals.

—

Curb

To encourage downtown development, adequate parking facilities should be provided with special emphasis on location, access, safety, maneuverability and attractiveness. To avoid unnecessary traffic movement, parking facilities should be located adjacent to major streets. Also, for convenience, parking should be as near as possible to the activity served, particularly for executive, office and shopper patrons. Generally, short-term parking should be within 600 feet from the destination and long-term parking within 1,500 feet.

124

'In" 1111111 104 Avenue

imakitt

1111114 I

Existing Major Parking 1966

10,550

Required Additional to 1981

8,250

Curb and off Street Spaces

4,600 23,400

Total 1981

DIAG. 4 - CENTRAL AREA PARKING PLAN.

2. To ensure for the provision of adequate offstreet parking throughout the City.

Outside the central business district area, parking standards for the various land uses are contained in the Zoning Bylaw. Generally, residential, commercial, industrial and public parking requirements are determined by the amount of dwelling units, floor space, employment and seating capacity respectively. Additional parking will be required as concentrations of activity are developed throughout the City. University campus and hospital expansions will require a minimum of 10,000 stalls or 80 acres of surface parking. The need for multi-level parking facilities in this area is critical.

Principles for Parking Facilities 1.

Roadway and parking requirements must relate to the intensity of land use.

Parking terminals should be located as near as possible to the ultimate destination of the user.

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

Short-term parking should be encouraged in areas of high patron turnover. Long-term

Objectives for Parking Facilities 1. To promote Central Area development by the provision of adequate parking facilities.

125

to bypass the downtown area while, at the same time, provide access to the central business district. The one-way street system in the C.B.D. will reduce turning conflicts at intersections and increase capacity of the overall system. Other proposals designed to increase Central Area access include a west approach to the Dawson Bridge direct from 101st Avenue, a 97th Street connection to the Low Level Bridge and the Glenora Road connection from the River Road to 110th and 111th Streets.

parking should be encouraged along major traffic routes outside the core area.

â&#x20AC;˘ 5.

Parking rate fees should be adjusted to regulate long and short-term parking.

Where major deficiencies exist, the City should assume the responsibility of providing adequate downtown parking facilities at competitive rates.

All business establishments should provide off-street loading bays of adequate capacity, access and design to be used for loading purposes only.

Saskatchewan Drive improvements including west connections to 87th Avenue over the C.P.R. tracks and east connections to 90th Avenue over Mill Creek Ravine will provide better access to the 105th Street Bridge and the University area.

8 Where additional street capacity is required, curb parking should be eliminated.

The East and West End Bridges will form part of a ringroad system as well as provide serviee for local areas.

TRANSPORTATION PLAN An adequate transportation system must serve all people, both public transit and automobile users. It must provide for each mode of transportation in such a manner that it can perform most efficiently. Consequently a balanced and co-ordinated system of transportation consisting of roadways and mass transit facilities is recommended.

Grade separations on Groat Road at 107th Avenue and at Emily Murphy Road and 6 C.P.R. overpass at 63rd Avenue will relieve congestion and unsafe operating conditions at these intersections. The staging sequence is designed to alleviate the most difficult problem areas at present while, at the same time, form an integrated system by 1981 that will provide a reasonable distribution for traffic to the C.B.D. and the City as a whole until the entire M.E.T.S. system can be implemented.

As Edmonton grows, vehicular concentration increases as does congestion. Eventually a point is reached where travel must be provided by a system that does not add to roadway congestion. This is particularly true in Edmonton where a strong downtown is encouraged. Increased congestion simply leads to increased decentralization of inaccessible downtown uses. A transportation system which brings large volumes of people to and from the downtown with a minimum of congestion will encourage Central Area development.

Transit Program The transit program consists of improvements to the bus system including additional express runs for faster service, improved downtown circulation through one-way streets and special transit malls for buses and pedestrians only. A study is recommended to formulate a detailed rapid transit plan and to determine when this system should be implemented.

Roadway Program The roadway program includes freeway and bridge proposals but assumes that the construction and paving of other road improvements will proceed as a part of the City's annual roadway needs. Financial arrangements will permit approximately one-half of the M.E.T.S. proposals to be implemented by 1981. The program consists of thirteen miles of freeways, five new river bridges, six railway grade separations and improvements to existing roads and intersections.

Approximately seventy-three percent of Central Area travel is by automobile, due generally to convenience of direct destination as compared to walking, waiting and overcrowding by the use of transit facilities. As congestion and parking difficulties increase, more people will be obliged to use transit facilities. The efficiency of a bus transit system is limited by downtown congestion which can best be relieved by a rapid transit system. A number of major land uses such as the University, the Exhibition Grounds, the proposed Coliseum, the Government and Civic Centres and the central business district will generate greater traffic and parking problems unless adequate transit facilities are provided.

The freeway program consists of the Jasper, Mill Creek and North-East Freeways including the South and East legs of the Downtown Freeway Loop. The new 105th Street Bridge with one-way street connections will complete a temporary downtown loop. This arrangement of freeways and bridges will allow through traffic

126

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EDMONTON GENERAL PLAN

DWG.

1981 ROADWAY PLAN

TRANSPORTATION

CHAPTER XII

Safety — Safety through automatic controls and reliability under all weather conditions are prime assets of a rapid transit system. At the present rate of financing, the proposed M.E.T.S. roadway network will require to the year 2000 to complete. The portion proposed to 1981 is designed to serve the downtown area and, concurrently, to provide by-pass routes for vehicles not destined for the Central Area. By this time, however, bus transit will have reached its maximum capacity and the need for mass

rapid transit will have become urgent. Under present federal, provincial and local cost sharing agreements simultaneous construction of a freeway and rapid transit system would appear financially impossible. As an interim solution, a rail communting service should be considered, using existing railway rights-of-way and facilities. The primary purpose of these trains would THE EFFICIENCY OF A BUS TRANSIT SYSTEM IS LIMITED BY DOWNTOWN CONGESTION WHICH CAN BEST BE RELIEVED BY A RAPID TRANSIT SYSTEM.

American transit authorities suggest the following criteria as a basis for initial implementation of a rapid transit system: — —

—

DIAG. 5 - MODES OF TRAVEL TO THE DOWNTOWN RESULTING FROM DIFFERENT TRANSPORTATION SYSTEMS. 100%

100%

90%

when it is desirous to create a strong regional centre when the metropolitan population reaches 500,000 and the core area accumulation reaches 80,000 or more when travel time from home to work is thirty minutes or more.

It is estimated that the City will reach all of these requirements within the next six or seven years. This is an indication of the urgency for a comprehensive rapid transit study.

80%

70%

60%

50%

40%

30%

20%

20% '-

10%

10% AUTO TRANSIT OTHER AUTO DRIVER PASSENGER

The more important merits of a rapid transit system include: Capacity — By the addition of more cars, rapid transit lines have almost unlimited capacity. Peak downtown movements may accommodate up to 30,000 persons per hour on a single track.

0% -

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100%

90%

80%

70%

60%

50%

40%

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Civic Vitality — Convenient mass transportation to the City centre will tend to concentrate business activities here and create a strong regional centre. Air Pollution — Downtown pollution and noise will be minimized by the use of an underground electric-powered rapid transit system.

OTHER

FREEWAY SYSTEM

TRAVEL MODES 1963

Land Use — Transit lines may be subway, surface or aerial, depending on location, and may be routed along railway or street rightsof-way for minimum disruption of land use.

AUTO TRANSIT PASSENGER

0% AUTO AUTO TRANSIT OTHER DRIVER PASSENGER

RAPID TRANSIT SYSTEM

128

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DIAG. 6 — RAPID TRANSIT. Peak downtown movements could total up to 30,000 persons per hour on a single track.

be to serve peak downtown movements using the C.N. station as the main terminal. A secondary function would be to serve employment areas located adjacent to branch lines. The scheme would involve joint City and railway use of trackage and right-of-way with stations and parking areas served by distributor buses. This system could be converted in stages to the modern rapid transit system that will eventually be required for the City.

benefits from savings in time and convenience. The region benefits from the use of a good transportation system in the central City. Municipal revenues are inadequate to finance present day transportation requirements. Moreover, it is inequitable to increase taxation to supply additional revenues for roadways when a large portion of the people depend upon the transit system. Similarly, the use of tax revenue to finance a

DIAG. 7 — EXISTING RAILWAY FACILITIES SUGGESTED FOR MASS TRANSIT USE.

FINANCING THE TRANSPORTATION PLAN The implementation of the proposed transportation system will require huge capital expenditures beyond the City's financial capacity. Nevertheless, an efficient roadway and transit system is as much a civic responsibility as is the provision of adequate schools, parks, utilities and other public services. In the past, municipal financing has been able to meet roadway costs while the transit system has been more or less self-supporting. However, with the rapid growth in recent years, roadways have reached their capacity and the transit system is hampered by roadway congestion. Additional sources of revenue will have to be found to maintain an adequate transportation system. An efficient urban transportation system provides municipal, provincial and national benefits. The increased value of adjacent property results in additional taxation revenues. The community

129

rapid transit- system is unfair to the auto user. Since it may be argued that an improved and balanced transportation system is beneficial to both auto and transit user, on both a local and regional level, then additional financial aid should be sought from the senior governments.

may be expected to yield enough revenue for operating and maintenance costs and eventually contribute a considerable amount to expansion requirements. The early construction of the entire transportation system is essential to maintain and enhance Edmonton's position as an important regional and national centre.

At present, the Province contributes seventyfive percent of the construction costs of approved freeways including bridges and fifty percent for expressways and major arterials. In addition, the Province will assume total construction cost for highways passing through the fringe area of the City. The Federal Government contributes eighty percent up to a maximum of $500,000 towards grade separated railway crossings. As yet, expensive land acquisition costs and property damage claims must be borne entirely by the City.

OTHER TRANSPORTATION SYSTEMS Railway Transportation Railways have played a major role in the development of the Canadian West. This early link across Canada brought settlers and goods to the West and, more recently, northern extensions of the railways have increased the development of regional resources. Despite the use of newer types of transportation methods (truck, air, pipeline, etc.) railways will continue to be a major transportation medium, especially for mass movement.

In the United States, where the aid for urban transportation facilities has been more readily recognized, the Federal Government pays ninety percent of the cost of on interstate freeway system including urban areas and the state contributes most of the remainder. In addition, the Federal Government contributes half the cost of improving designated primary thoroughfares through cities, the other half being borne by state governments. Also transit systems, both rail and bus, are being subsidized at approximately fifty percent of costs by U.S. federal grants with some states also contributing. U.S. federal grants are also provided to encourage transit research for the improvement of public transportation. In Canada, the Toronto subway system receives from the Province of Ontario one-third of the construction cost of the tunnel exclusive of lrind and station costs. In addition, the Province is financing a commuter rail service thirty miles east and west of Toronto to supplement highway facilities.

Edmonton is served by two transcontinental railway companies, the Canadian National and the Canadian Pacific Railways, providing both passenger and freight service. Edmonton is also the terminal for the Northern Alberta Railways which provides service north to Fort McMurray, Peace River, Dawson Creek and, in conjunction with the Great Slave Lake Railway, to Pine Point in the Northwest Territories. One-quarter of the used industrial area in the City consists of railway facilities. Canadian National has a rail network serving industry throughout the City with yard facilities located in north Edmonton, the Central Area and in south Edmonton. Canadian Pacific maintains yards and terminals on the south and north sides of the City. Both railways service the southeast industrial area with some joint use of trackage. The location of the Canadian National yards and the newly completed terminal and office building in the Civic Centre allows for direct distribution of freight and passengers to the Central Area.

Additional financial assistance should be provided by senior governments considering the various benefits provided by the City as a major centre serving a region. A larger portion of sales tax revenues should be returned to the City, particularly those gained through auto users. Annual provincial vehicle licence fees and gasoline tax currently amounting to 15 and 43 million dollars respectively should be diverted more to metropolitan transportation requirements since these areas are the major sources of these revenues.

Objectives for Railway Transportation

Although the proposed transportation system will involve considerable costs, the system, once completed, will function largely on local finance. Freeways will generally only require extensions into new areas and these can be planned for by acquiring the necessary rights-of-way beforehand thus assuring the best alignment and lowest land costs. The rapid transit system, once established

130

To encourage the development of railway operation in order to maintain Edmonton as a major transportation centre and as the focal point for the vast region to the north.

To encourage the provision of adequate railway facilities in industrial areas.

To assure adequate safety measures at railway crossings.

To determine the feasibility of relocation or elimination of undesirable railway trackage.

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DWG,

RAILWAY FACILITIES IN EDMONTON

TRANSPORTATION

CHAPTER XII

railway facilities and the development of railway lands in relation to City expansion.

Air Transportation Four airports are located in the Edmonton Area: the International, Industrial, Namao Military and Cooking Lake Airports. The two major terminals serving Edmonton are the Industrial Airport and the International Airport. Large jet airliners which require long runways and flight paths with a minimum number of conflicts and a high quality of terminal facilities are accommodated at the International Airport, seventeen miles south of Edmonton. This airport handles national and international air traffic and serves two scheduled airlines â&#x20AC;&#x201D; Air Canada and Canadian Pacific Airlines. In addition, northern and charter flights originate from this airport. Propeller and turbo-propeller types of aircraft which are able to use shorter runways are accommodated at the Industrial Airport in Edmonton. This airport serves scheduled airlines, freighters, private aircraft and the local flying club. The continued existence of this airport is jeopardised by the economics of maintaining this large land use near the City centre with its surrounding influence on development in providing unobstructed runway approaches. STUDIES SHOULD BE UNDERTAKEN TO DETERMINE THE FEASIBILITY OF MAINTAINING RAILWAY YARDS ADJACENT TO THE CENTRAL AREA.

Military aircraft are accommodated at the Canadian Forces Base at Namao, three miles north of the City, which also includes a major military re-supply depot. The possibility that this airport may cease to operate as a military base provides a potential site for the relocation of the present Industrial Airport.

Principles for Railway Transportation 1.

Railway operations should be suitably separated and screened from incompatible land uses.

Industry locating adjacent to railway lines should be a kind that requires rail service to promote a more efficient use of land and trackage.

All major roadways should be grade separated from railways for safety and efficiency. Main line and secondary railway crossings should be protected with grade separations, lights or stop signs consistent with the type of roadway crossing.

Switching or shuttle operations over roadways at grade should be limited to off-peak traffic hours.

Joint trackage service should be provided by the two railways to serve industrial districts.

Close liaison should be maintained with the railways in order to co-ordinate the use of

Seaplanes and club aircraft are accommodated at the Cooking Lake Seaplane Base, presently owned and operated by the City. It has a seaplane channel and two sod landing strips.

Objectives for Air Transportation

132

To resolve the future of the Industrial Airport.

To maintain high standards of service and safety at all airports.

To maintain an adequate metropolitan airport system to accommodate passenger, freight, local and training needs and to provide all aircraft with suitable landing and servicing facilities.

To protect airport runway approaches from obstructions or hazards to air navigation.

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EDMONTON GENERAL PLAN

INDUSTRIAL AIRPORT MINIMUM CLEARANCE REQUIREMENTS TRANSPORTATION

DWG.

5 CHAPTER XI I

Accommodates military personnel, training and cargo transport aircraft; contains a major equipment depot supplying all requirements for Western Canada. SECONDARY TERMINALS

NAMAO (MILITARY) AIRPORT

Runways range from 4,0006,000 feet in length with 750 feet from end of runways to property lines. Site area requires about 700-800 acres. The field is lighted for night flying and has communication facilities for traffic control. Convenient access to the City's

industrial and business districts is necessary.

MAJOR TERMINALS Runways range from 10,000 to 11,000 feet with 1,000 feet to property lines. About 8,000 to 10,000 acres are required for

Aircraft includes the propeller and turbo propeller type and small and medium type jets.

the site, with an unobstructed

Serves scheduled and unscheduled commercial airlines as

glide angle of 50:1 at least. Fields are lighted at night with instrument landing system control.

well as business and private aircraft. Contains attendant storage, servicing a n d maintenance facilities and related industries.

Located 10 to 20 miles from urban areas because of noise and safety factors. Good access to highways is necessary.

COOKING LAKE AIRPORT

INTERNATIONAL AIRPORT

MINOR TERMINALS

Serves scheduled and unscheduled jet and prop commercial aircraft on continental and inter-continental flights.

Runways range from 2,000 to 3,000 feet long with 250 feet to property line, site area is 200-300 acres depending upon storage space required. Located 4 to 5 miles outside the urban area.

Accommodates seaplanes and amphibians, glider and parachute clubs.

INTERNATIONAL AIRPORT

EDMONTON GENERAL PLAN

EDMONTON AREA AIRPORT STANDARDS TRANSPORTATION

DWG.

6 CHAPTER XII

EDMONTON INTERNATIONAL AIRPORT. Completed in 1960, this airport will accommodate other large aircraft well into the future.

To discourage housing development and other inappropriate uses in the vicinity of airports and to encourage open land uses at runway approaches in conformance with airport standards.

national

and international airlines and

outward should be planned in urban areas. 4.

Air transportation should be a part of the overall transportation system and contain good road access, ample parking with convenient bus and other services.

To study the feasibility of establishing heliports throughout the City. Airport Standards Planning for airports and the land surrounding them requires some understanding of airport operational standards. The Industrial and Namao Airports are particularly important since existing operational standards directly affect the physical development of the City.

Principles for Air Transportation 1.

Uses oriented to air transport and related services should be encouraged to locate at the Industrial and International Airports and other unrelated uses discouraged.

In order to reduce aircraft noise to surrounding, areas, the following practices should be considered: to provide buffers of foliage, buildings and open space at the airport's periphery; to stipulate that the use of muffling devices and blast fences be required during aircraft run-ups; to control take-offs and landings to minimize nuisance; to orient runways to coincide with corridors of open land; and to discourage development in the vicinity of airports.

Central Mortgage and Housing Corporation will not make loans in the vicinity of airports within 1,000 feet of either side of a runway centre-line for the full length of the runway and extending 5,000 feet beyond the ends of the runway. This is an important influence on the physical development and, therefore, the planning of development near airports. Loans for residential development are not made in areas of heavy commercial or military jet traffic because of noise and safety. The area ordinarily included extends 2,000 feet on either side of a runway centre-line and its projection for a distance of four miles from the end of the runway.

Airports should be planned for future expansion and should have clear zones of open land abutting runways where possible. A gradual transition of uses from the airport

135

Chapter XIII

PUBLIC UTILITIES INTRODUCTION The provision of most public utilities in Edmonton is a function of local government with the City providing water, sewer, refuse disposal, electrical and telephone facilities to consumers in the Edmonton area. The natural gas utility in Edmonton is privately owned. The 1981 Land Use Plan, prepared through consultation with the various utility departments, determines the form of residential neighbourhoods and thus the nature and limits of required services. This Plan indicating land use and future population densities serves as a guide for utility design. The ability to regulate urban development by exercising "planning control" permits utilities to be economically programmed at a level of service consistent with development demands and good public health standards.

Utility buildings and structures should be designed with due consideration not only for utility needs and safety but also for environmental amenities.

Where possible, all wire systems should be placed underground and especially in new residential districts.

The objectives and principles of the General Plan should apply to the provision of utility services whether they are municipally or privately owned.

WATER SUPPLY AND DISTRIBUTION The North Saskatchewan River is vital to the planning of water and sewer services for Edmonton. The provision of these services in tne City are of major importance in carrying out development policies. Based on the volume

The following general objectives and principles pertain to all the various utility services. Where more specific objectives and principles relating only to a particular utility were required, they have been incorporated into the discussion of that utility.

DIAG. 1 — UTILITY REQUIREMENTS FOR THE CITY OF EDMONTON. Scale based on 1961 level. 3.75

Objectives for the Development of Public Utilities To provide safe, adequate, economic and reliable utility systems to serve the needs of Edmonton. 106 f7,771

To ensure the most orderly and economical extension of utilities by programming their installation.

City Power Plant 310

Principles for the Development of Public Utilities 1. Utilities should be designed and planned to serve the projected land uses and population densities. 2.

8.7

315

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The construction of utility facilities should be in accordance with the urban land extension program.

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136

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.72

126

2.6

The plan for programming the extension of urban lands should consider the economics of utility development.

Et Industrial tA Area i:t>

570

6-1 00 OS

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11,401.10

LIMIT OF PRIMARY PUMPING ZONE

EDMONTON GENERAL PLAN

EXISTING MAJOR WATER LINES - 1965 PUBLIC UTILITIES

DWG.

1 CHAPTER XIII

Principles

of River flow the amount of sewage permitted to be discharged is regulated in accordance with standards established by the Provincial Board of Health. The Brazeau Dam provides a minimum winter flow of 2,000 cubic feet per second and 10,000 cubic feet per second in the summer. A population of one million will require approximately 140 million gallons for a peak day which is only three percent of the average summer flow and 85 million gallons per day in the winter, or eight percent of winter flow. Water supply on a long-range basis is, therefore, adequate to meet increasing local consumption needs. Treatment capacity at the existing plant has recently been increased to 85 million gallons daily, sufficient to meet the demand until 1970. Additional capacity will be provided by a new plant upstream to be constructed in stages as required. Water treatment and power generations when operated jointly from the same intake on adjacent sites function more economically by raising the water temperature in winter through the use of the condenser cooling water direct from the power plant. Storage facilities consist of two elevated tanks of 1 million and 1/4 million gallons respectively and two 12 million gallon ground reservoirs. As urban development expands further away from the central plant and into higher areas, re-pumping and new reservoirs will be necessary to maintain adequate pressure. Storage capacity in the system is used to balance daily peak demands. There is a need for at least three new reservoirs by 1981 to provide a total storage capacity of 80 million gallons.

Storage should be provided in a series of reservoirs located near the periphery of the developed area. Each reservoir should be supplied by an independent pipeline radiating from the central plant. Balancing st 'rage should equal twenty percent of the ma 'mum daily use. In addition, one avercge day's water requirement should be stored for emergency purposes and twelve million gallons for fire purposes.

The water system should maintain a minimum pressure of 40 pounds per square inch and not more that 70 pounds per square inch during maximum usage.

The metering system in Edmonton should be continued to discourage wastage by consumers.

Edmonton's main sewage treatment plant provides primary and secondary sewage treatment. The main sewage plant which also serves Griesbach and Namao has now reached its design capacity and should, therefore, be expanded during the Plan period. The secondary system has a capacity of 30,000,000 gallons per day or a population equivalent of 250,000 and a smaller primary sewage treatment plant located in Queen Elizabeth Park can handle a population equivalent of 52,000 daily. Because of the self-purification qualities of the River, a certain amount of primary treated sewage can be placed in it, depending upon the time of year and volume of flow without deleteriously affecting the downstream water supply. The main plant site will permit expansion to three times its present capacity. In order to postpone the large capital expenditures required to expand this plant, lagoons have been built in the northeast industrial area. These lagoons will handle effluent from the packing plants in northeast Edmonton and from some of the northeast residential areas.

Objectives

Treatment plants, pumping stations, reservoirs and the distribution system should have a capacity to meet the maximum hourly water demand as well as the emergency, fire and disaster demand of the City. The system should be such that storage and flows can be conveniently balanced to meet the full range of these water demands.

SEWAGE DISPOSAL

The range of water consumption in Edmonton runs from 70 gallons per capita per day on the average for the winter months to 86 gallons on the average for the summer months, but peak summer days reach 140 gallons per capita. The water supply and distribution system is designed to adequately meet the maximum requirements of this range. In addition, the Edmonton system supplies water to Namao, Griesboch, Leduc, the County of Strathcona, St. Albert and Oliver. These areas presently account for less than five percent of the annual gross consumption of 10 billion gallons.

To safeguard the City's water supply and to provide adequate amounts of good quality potable water.

More intense development in the Central Area has necessitated the construction of relief sewers to supplement the original system. Large interceptors are presently being designed to provide sufficient capacity to serve a population of

To provide a balanced system of water supply and distribution network to meet the full domestic, industrial and emergency requirements of the City.

138

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0 INCINERATOR

EDMONTON GENERAL PLAN

DWG.

STORM AND SANITARY INTERCEPTORS

PUBLIC UTILITIES

CHAPTER XIII

one million or more. The separation of storm and sanitary sewer systems is a general policy for all new areas but combined systems exist in the older built-up sections and will likely continue.

or impractical and where lagoon sites are available which do not conflict with or harm surrounding land uses. 5.

Where possible, sewer systems should operate on a gravity flow basis to avoid the need for pumping stations.

The design of sanitary sewer systems should have regard to the peak load conditions in Edmonton, the use of natural grades for economical operation and adequate installation depths to prevent freezing.

Objectives 1. To provide a sewer system and treatment facilities to control and limit River pollution and the emission of odors; to protect public health; to protect the River Valley as a recreational area; and to prevent water contamination.

STORM DRAINAGE

To safeguard Edmonton's water supply and the supply of water to communities downstream.

Storm sewers are used to collect and carry surface water or reduce to a minimum any flood damage. The rapid growth of Edmonton is producing a substantial increase in paved area thereby creating a faster rate of runoff and collection. Adequate storm sewer facilities are, therefore, essential to keep local flooding to a minimum.

Objectives 1.

To protect public and private property from flooding.

2. To provide drainage facilities that are adequate to handle heavy rainfalls and spring runoff.

Principles 1 Sewer rights-of-way should be economically planned to operate on a gravity system and to utilize natural water courses where available. THE SEWAGE TREATMENT PLANT. Sewage is treated to pro-

2. Storm sewers should be designed with due consideration for the type of surface drained and for high intensity storms which may occur.

tect public health, the recreation potential of the River Valley and to safeguard the supply of water to communities downstream.

Principles 1.

Storm and sanitary sewers should be separate where possible in order to relieve the load on the treatment plant.

Private water supply through individual wells and private sewage disposal through septic tanks should be permitted only where the extension of sanitary sewer systems are neither practical nor economical.

REFUSE DISPOSAL

Control should be exercised over development so that design capacities of sewer pipes will not be exceeded and regulations enforced to control the type and quality of waste from industry.

The method of refuse collection and disposal is significant in a planning context. The disposal of refuse involves a major use of land that can radically affect planning for the surrounding area. Perhaps no other land use has such potential for public controversy as refuse disposal operations and, therefore, careful advance planning must be undertaken to minimize land use conflicts in the selection of disposal sites. The present City refuse disposal system includes an incinerator in Cloverdale and three landfill areas: 5 acres in Jasper Place, 60 acres east of Beverly and 160 acres south on 75th Street. The incinerator is presently operating

Sewage lagoons should only be utilized where economics make plant disposal impossible

140

CITY OF EDMONTON POWER PLANT. To the left of the picture is the water treatment plant.

at a capacity of 15 tons per hour. The residue is dumped at the site and will eventually be covered and landscaped. The present incinerator site will be displaced by roadways and park needs sometime after 1970.

obtain the most efficient and economic system of balanced disposal for the City.

Additional incinerator capacity will be required in the near future and new sites should be located to minimize hauling distances. These could be located in industrial areas in the northeast, northwest and southeast. Additional landfill areas will be required at suitable locations beyond the urban area. The location and selection of sites for sanitary landfill should be dependent upon a number of factors including: land area requirements, topography, drainage, availability of cover material, accessibility, length of haul, future use of the land, proximity to developed areas and provision of adequate screening.

To carry out the public responsibility of waste disposal in order to protect public health and amenities.

To provide a waste disposal system consisting of incinerators and landfill areas to meet requirements during the Plan period in as economical a manner as possible.

Compulsory collection of domestic refuse must be continued to eliminate the nuisance and air pollution caused by individual onsite burning and to preclude health hazards and nuisances associated with individual waste disposal methods.

Strict control must be exercised over the disposal of extensive industrial, commercial and construction wastes to prevent unnecessary and harmful pollution.

POWER SUPPLY AND DISTRIBUTION The City of Edmonton Power Plant, located in the River Valley, has an ultimate capacity of 405 megawatts. An additional 600 megawatts will be required by 1981. This could be supplied by a new gas fired plant constructed upstream in conjunction with a new water treatment plant or a plant at Genessee or Ardley where large coal deposits can be utilized. At this time, it is most likely, however, that a gas fired plant will be constructed downstream on Edmonton's eastern outskirts.

Objectives 1.

The increased utilization of power p e r capita, improved plant capacity and technical advances have reduced consumer costs and should continue to do so. The load of 1.0 billion kilowatt hours per year is increasing approximately ten percent per year so that by 1981 the load is expected to be 3.8 billion kilowatt hours per year. Electric power rates in Edmonton are among the lowest in Canada.

Principles 1. The economics of landfill compared to the problems of air pollution associated with incineration should be considered in order to

141

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EDMONTON GENERAL PLAN

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CHAPTER XIII

Technological improvements such as electronic switching will provide better, faster and a greater variety of service than ever before. Special services will include the ability to reach frequently called numbers by dialing only three or four digits or by connecting a third party into telephone conversations in progress or to direct incoming calls to friends' homes for the evening. Special equipment will expand the ordinary use of the telephone. Speaker phones, data phone service, pushbutton dialing, inter-office communication and many other services can be provided.

City growth should not necessitate any major changes in policy of operation but there will no doubt be an acceleration in technical changes such as: â&#x20AC;&#x201D;

the use of district operating and stores depots to reduce transportation time and improve service

â&#x20AC;&#x201D;

the use of higher voltage transmission lines to economically serve the increasing load densities

â&#x20AC;&#x201D;

the continued trend to place transmission lines underground to improve aesthetics and lessen the problems of providing rights-ofway.

Objective

The number of major substations should increase from four to possibly eleven by 1981.

To provide an efficient and modern telephone service to the residents of the City of Edmonton.

Objective

Principle

To provide electric power to meet the expanding needs produced by growth, a rising standard of living and the application of electricity to new uses.

In planning sites for exchanges, consideration should be given to the potential number of subscribers and physical limitations of their service areas. These exchanges are normally planned to serve an area with a radius of about two miles containing an urban population of 100,000 people.

Principles 1.

A planned expansion program should be instituted to aid in reserving and economically acquiring necessary rights-of-way for transmission lines, substations and other structures.

NATURAL GAS SUPPLY Northwestern Utilities Limited has supplied the City of Edmonton with natural gas since 1923 and operates under a franchise agreement granting the Company the use of streets and lanes for the laying of pipe and the exclusive right for the supplying of natural gas for domestic and heating purposes. In return, the City collects eight percent of the residential and three percent of the industrial gross receipts from the sale of gas, plus property tax on the facilities located inside the City. The rates are among the lowest in Canada and the supply of gas is assured for at least 30 years.

Provision should be made for joint use of rights-of-way by electric, transit, telephone, fire and other systems.

TELEPHONES The City of Edmonton Telephone System is one of the largest municipally owned telephone systems on the continent. At present there are nine exchanges in the City including one in Jasper Place which is owned and operated by the Alberta Government Telephones. By 1981, one more exchange will be required in the southwest area of the City.

Objective To encourage the development of natural gas resources to ensure that an adequate supply will be available for the City to meet daily base and peak load requirements throughout the Plan period and beyond.

The character of telephone service is determined by population growth, the increase in the number of telephones per person and the use of new and varied types of special equipment.

145

Chapter XIV

PROGRAMMING tions or deletions recommended in the forthcoming Master Plan for parks and recreation facilities.

INTRODUCTION The achievement of the objectives contained in the General Plan is, in large part, dependent on the provision of a staging program that outlines the sequence in which specified areas may be developed or redeveloped. Absence of careful planning and proper timing could create excessively high long-run development costs. Through a broader evaluation of needs, a system of priorities would be outlined to ensure the most orderly and comprehensive development of public and private facilities.

Objectives for Programming

One of the greatest sources of financial waste in local government is often the required extension of utilities and roads and the provision of schools and other public services to isolated areas developed prematurely. As a result, development may be retarded by inadequate services to areas where they are more urgently required. Chapter IV, Urban Growth and Land Use, delineates the general areas in which urban expansion would be most advantageous. Based on projections of population and employment, this Chapter will outline land requirements for successive five-year periods.

To promote orderly and compact expansion.

To direct urban growth into the most desirable locations.

To provide a variety in choice for residential and industrial sites in several locations throughout the City.

To provide a basis for an efficient and orderly construction program of neighbourhood and community facilities.

To assist City and senior government departments to program their own capital works as part of the overall City program of development.

To provide information to assist public and private agencies in their long-range planning and financing programs.

Principles for Programming

Approval of this staging program will provide a plan to which all City Departments could refer. This kind of program would also permit other government and private agencies to plan and co-ordinate their own individual development programs within the broader City program. Land uses included in the staging program are for residential, industrial and park areas. Bridge and roadway staging is referred to in the Transportation Chapter. The program for new residential development consists of three fiveyear stages from 1966-1981 with provision for redevelopment in the built-up areas. The industrial program consists of one fifteen-year stage from 1966-1981 with provision for a reserve area beyond 1981 and for special uses. The parks program consists of three five-year stages from 1966-1981 with additional parks being planned for in the developed areas. This program would be subject to modifications and addi-

146

The staging program will consider the location and size of areas to be developed, population, growth trends and distribution and employment and density projections.

Staging priorities must consider the areas with respect to utilities, roadways, air pollution, noise, topography, soil conditions and proximity to core area, work areas and recreational areas.

Partially developed neighbourhoods should be completed in Stage 1 of the residential program.

Neighbourhood parks in new residential areas should be developed concurrently With the construction and occupancy of houses in the neighbourhood.

High density development should be restricted to areas adjacent to major transportation routes in the vicinity of major

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EDMONTON GENERAL PLAN

STAGING PLAN PROGRAMMING

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1 CHAPTER XIV

employment, educational, commercial and receational centres. 6.

Adequate industrial land must be set aside in a variety of appropriate locations within the City.

The staging program should be based on a thorough analysis of all utility and service programs.

The most beneficial and economical development program should be followed regardless of land ownership patterns.

Within each stage, compact patterns of development, neighbourhood by neighbourhood, should be encouraged to allow for efficient provision of public facilities and services.

10.

The staging program should be reviewed periodically or when major development patterns are changed.

11.

The City of Edmonton should prepare and maintain a detailed plan outlining the residential expansion expected yearly over the following five years. Staging of the fifteen-year industrial program should be separated into five-year stages.

The northeast and southwest areas are staged for a similar rate of development slightly favouring the southwest due to the abundance of ravine and River Valley areas. Although originally designed for residential expansion, the area bisected by the Kennedole Ravine in the northeast is under study as to the feasibility of residential development due to various problems arising from the surrounding industries. The relatively small area vacant within the western City boundary is staged for development by 1981. Higher densities in developed areas are expected to account for an additional population of 37,500. Major increases are expected in the Central Area and adjacent fringes and in the Strathcona and Garneau areas. Minor increases are expected in central Jasper Place, Norwood and the University Campus. The extent of Central Area development will be influenced by existing public services, future mortgage lending policies and the growing transportation problem. Some residential uses in the Central Area will be displaced by roadways, commercial uses, parks and public uses. Industrial uses north of Whyte Avenue between 101st and 104th Streets are to be redeveloped residentially on a long term basis. Improvement in urban renewal areas in Alex Taylor, McCauley, Queens Avenue and the Civic Centre will proceed throughout the Plan period.

THE PROGRAM FOR RESIDENTIAL DEVELOPMENT

As previously indicated, the major residential expansion areas are in the northeast and southwest. The achievement of this plan, however, is dependent on the provision of an appropriate transportation network to service these areas. The staging of construction of the freeway network as approved in principle by City Council in March 1966, would seem to indicate that some congestion will be encountered by those travelling to and from the downtown area and the southwest residential districts. In comparison, the degree of congestion experienced by those approaching from west Edmonton will be significantly lower with the completion of the Jasper Freeway to 149th Street by 1972-73. If the Jasper Freeway was extended to the present western city limits prior to 1981, residential expansion west of 170th Street would most likely be more appropriate than similar expansion in southwest Edmonton. Because the Jasper Freeway is not scheduled for completion until after 1981, staging of residential development west of 170th Street prior to 1981 would result in congestion similar to that expected in the southwest area given the staging program in this General Plan. This whole matter will be under constant observation and, in any event, subject to a thorough review within the next five or six years.

The program for residential development is based on population projections and the anticipated distribution of people into new and built-up areas. Population increases for the three staging periods are given in the following table: POPULATION AND GROWTH STAGES Population

Year

Stage

1966 371,300 435,000 1 1966-71 1971 1976 500,000 2 1971-76 1981 570,000 3 1976-81 Total Population Growth

Growth

63,700 65,000

70,000 198,700

The population increase of 198,700 is distributed into new areas in the northeast and southwest sections of the City and in developed areas throughout the City. DISTRIBUTION OF GROWTH Location

Population Acreage Increase Requirement

Northeast Southwest, south of River Southwest, north of River

71,900 73,500 15,800

New Area Growth Developed Area Growth

161,200 11,500 37,500

Total Growth

4,900 5,500 1,100

198,700

148

ciples of development are to provide various types of recreational space for neighbourhood, community and district needs and to create a continuous park area in the River Valley and adjacent ravines extending from the southwest limits of the City to the northeast.

THE PROGRAM FOR INDUSTRIAL DEVELOPMENT The industrial staging program is based on employment projections and the anticipated distribution of workers throughout the Metropolitan Area. Manufacturing employment for the Edmonton region is estimated to be 43,280 by the year 1981. Distribution, location and area requirements are estimated from existing standards and employment category projections. A liberal allowance is made for non-manufacturing industries such as wholesalers and warehouses, construction and trucking firms, storage lots and vacant areas for future expansion.

The program for parks and recreation development is based on existing facilities and projected urban growth. Requirements were determined from basic standards outlined in the Parks and Recreation Chapter. The order of park development is dependent upon such aspects as age of the district, proximity to the River Valley and the existing and proposed park facilities in relation to schools throughout the area. Generally, park facilities should be provided in new neighbourhoods concurrently with the construction and occupancy of houses. Older neighbourhoods that are deficient in parks should be given attention for park development to provide adequate parkland for the residents. Urban renewal schemes should provide additional parkland in older residential districts such as Boyle Street and McCauley.

There are presently some 6,700 acres of used industrial land in the Metropolitan Area. An additional 7,300 acres will be required for industrial use by 1981. Approximately 1,100 acres are available in the developed areas (Kennedale, Central, south Edmonton, etc.), 1,700 in the northwest and 4,500 in the southeast industrial areas. An additional 4,000 acres are designated as industrial reserve beyond 1981 and for special uses such as large land users or obnoxious or hazardous industry.

Active park areas such as playgrounds and athletic fields should be developed before amenity parks, buffer strips and median areas. Parkland in new areas is expected to total some 1,100 acres consisting of active parks combined with school facilities. Additional parkland should be acquired and developed in the Central Area and in Strathcona where large population increases are expected.

SUMMARY OF INDUSTRIAL LAND REQUIREMENTS 1966-1981 Beyond 1981 Total

City of Edmonton Outside City Total Metropolitan Area -

5,200 1,800 2,100 2,200 7,300

7,000 4,300

4,000 11,300

More intensive use is planned for district parks in Argyll, West Meadowlark Park, Prince Rupert and Lauderdale and community parks in Rosslyn, Glengarry, Beverly, Ottewell and King Edward Park. Special parks including the Civic Centre Sir Winston Churchill Park and City Zoo will require individual consideration and these projects should be integrated with the overall parks program for Edmonton.

Areas in which residential uses conflict with industry are to be redeveloped industrially. This consists of older housing in the Queens Avenue, Calder, North Edmonton and Whyte Avenue areas and along the proposed northeast freeway. _

The area of major industrial expansion is in the south part of the City where industrial estates are being developed with access to both railways. Utility services are well advanced into this area with adequate provision for expansion. The proposed major roadways will add to the long-term desirability of this area. To the east of the City, large areas are allotted for expansion of steel, petro-chemical and related industry. , The northwest area is expected to continue to develop in the industrial estate manner housing non-noxious light industry.

The River Valley Some 2,100 acres of River Valley and ravine area are staged for development for both public and private uses. The intensity to which these areas are developed will depend upon topography and proximity to the Central Area. Arboretums, botanical gardens, zoos, picnic grounds and athletic fields will occupy land in the more central areas. Ski slopes, boating facilities, golf courses and camping grounds will generally be located in the fringes. 'Some areas will remain in their natural state linked together by continuous pathways and trails.

THE PROGRAM FOR PARKS DEVELOPMENT The acquisition and development of open space for parks and recreation is an important element in maintaining a pleasing environment for the citizens of Edmonton. Basically the prin-

Proposed roadways throughout the various ravines will require adjacent amenity and buffer

149

require ten or more years to complete. Other parkland in Rundle Heights, the Kennedale Ravine and Whitemud Creek will generally be developed following residential growth in these areas. The remaining parkland in Patricia Heights, Terwilleger Heights (Big Bend Park) and Whitemud Creek will probably not be fully developed until sometime after 1981.

park areas. McKinnon, Quesnell and Capilano ravines are included in Stage I and Mill Creek in Stage Ill. The proposed 105th Street and Low Level Bridge approaches will require substantial land purchases in Rossdale, Walterdale and part of Cloverdale beginning in Stage II. The costly acquisition and conversion of these residential areas near downtown for roads and parks will

150

Chapter XV

FINANCING AND CAPITAL PROGRAMMING FINANCING

million dollars in 1947 to over 182 million dollars in 1965. The net schools debenture debt increased from 3.5 million dollars to over 44 million dollars during the same period, giving Edmonton a gross funded debt of over 226 million dollars in 1965 or 608.67 dollars per capita. A large portion of this debt does not affect taxes, however, as it consists of utilities debt which is self-liquidating. The net debt less utilities or the debt affecting taxes was 464.80 dollars per capita in 1965.

Edmonton's Financial Position Since the discovery of oil near Edmonton in 1947, the City has experienced a tremendous rate of economic development and population growth. This growth has been accompanied by an increasing need for public services and facilities, consequently increasing the current and capital expenditures of the City substantially. In the period from 1947 to 1965 annual current general expenditures increased by more than 1000 percent, amounting to more than 62.5 million dollars in 1965. In the same period, the combined total current general expenditures for all purposes amounted to over 537 million dollars while total municipal capital expenditures, including utilities and excluding schools, amounted to 400 million dollars.

Fortunately, during this period of expansion, Edmonton was able to benefit somewhat from the increased Provincial grants-in-aid and loans which the Province was quite able to pay. Future expenditure policies will require a very careful evaluation of the City's financial position in relation to its outstanding debenture debt and the existing and foreseeable revenue sources.

The rapid economic and population growth imposed serious fiscal burdens on Edmonton forcing the City to meet these expenditures from the existing limited and inadequate revenue sources. Although while net assessment increased substantially from 83 million dollars in 1947 to 646 million dollars in 1965, the property tax yields and assessment increased at a rate well below the expenditure rate, hence greatly aggravating Edmonton's debt position.

DIAG. 2 — CITY TAXABLE ASSESSMENT. An increase of nearly 800 percent.

1947

1965

The total municipal debt of Edmonton, which includes general and sewer debt, local improvement debt and utilities debt, increased from 17

100

1947

1965

196)

40 '

50 '

60 '

50. 0

400

600

700

DIAG. 3 — PROPERTY TAX YIELDS. An increase of over 850 percent.

1947

300

MILLIONS OF DOLLARS

DIAG. 1 — GROSS ANNUAL CURRENT EXPENDITURES. They increased nearly 1000 percent from 1947 to 1965.

200

ri 5

MILLIONS OF DOLLARS

151

of approximately 200 million dollars in 1965, as compared to 51 million dollars in 1956. Tax exempted properties include Federal and Provincial government properties, the University, schools, colleges, religious places of worship, charitable organizations, hospitals, properties of agricultural societies, library boards and nonrevenue producing City properties. With the ever increasing demands for funds by urban areas, the four fold increase of tax exempt properties in the past ten year period in Edmonton does suggest that the situation may be reaching a critical state. Although grants-in-lieu of taxes are now being received for some properties the City should examine and appraise the status of all tax exempt properties with a view to achieving a more rational and equitable property tax structure.

Edmonton's Current Revenue Sources

Revenue sources available to meet Edmonton's financial needs are limited by the borrowing and taxing powers granted to the City by the Province. As a matter of City policy, current revenues from realty taxes, licences, special frontage taxes, utility contributions and taxes, business taxes and government grants have equalled current expenditures. THE PROPERTY TAX The property tax consists of the realty tax and the special frontage tax. The realty tax is based on the value of all the property assessed in Edmonton not exempt from taxation by law. A general assessment roll is compiled and upon confirmation of the roll a mill rate is struck for municipal and school purposes. In addition to the municipal school purposes mill rate, special frontage taxes are levied for local improvements purposes.

THE BUSINESS TAX The City Act permits Edmonton to assess all business conducted within the City. The tax rate varies with the type of business and ranges from 6 to 20 percent with the average yield being approximately 11 percent of the assessed value. As a percentage of total revenue, the business tax has declined from 6.8 percent in 1956 to 5.0 percent in 1966 and should continue to decline as a percentage of total current revenue. The rates for the business tax could be increased and the assessment of certain types of businesses for tax purposes could be raised to provide a greater amount of revenue in the future. A review might be appropriate of the business tax exempt status of commercial enterprises of the Provincial Government such as the Alberta Liquor Control Board and Provincial Treasury Branches.

Historically, the property tax has been, and in all probability will continue to be, the most important source of current revenue for Edmonton. Between 1947 and 1966, property taxation, including special frontage taxes for local improvements, has provided from 59.5 to 70 percent of the total current revenue. In 1966 the property tax accounted for 60 percent of the City's revenue but with the utilization of new revenue sources this percentage is expected to decline somewhat. With the continued increases in capital expenditures, however, the burden of the property tax will not be alleviated. In 1965, net assessment amounted to 646 million dollars, more than double that of ten years prior. Tax exempted properties have also increased substantially, to an assessment value

GENERAL DEPARTMENTAL REVENUES DIAG. 4 â&#x20AC;&#x201D; ESTIMATED SOURCES OF REVENUE, 1966. New sources of revenue ore required to implement the Plan.

This category includes revenues from: licences and permits; rents, concessions and franchises; fines; interest earnings; service charges; recreation and community services; and miscellaneous. Revenues from these sources in 1966 amounted to 7.9 million dollars or about 11.8 percent of the total as compared to 3.1 million dollars or 13.3 percent in 1956.

=PROPERTY TAXES 5 â&#x2013; 1111 UTILITY PROFITS 15%

GOVERNMENT GRANTS

GOVERNMENT GRANTS 12%

Government grants are a most indeterminable factor of revenue to the City and are assuming increasing importance in the financial planning for a capital improvement program. In recent years, the debt and the rates of taxation of Alberta's municipalities have increased sharply. Consequently, the Alberta and Federal governments have been called upon to increase

GENERAL REVENUES 12% BUSINESS TAXES 5%

152

— —

MILLIO NS O FDO LLARS

substantially the amount of direct aid to Edmonton. This has come in the form of: Federal and Provincial payments in lieu of taxes on Federal and Provincial properties. Federal and Provincial conditional and unconditional subsidies, including Provincial highway and welfare grants. Federal, Provincial and Municipal sharedcost programs. The Municipal assistance grant on a per capita basis derived from the Municipal Assistance Act.

1956

In addition, the Federal and Alberta governments have provided for grants of indirect assistance: —

—

1958

1960

1962

1964

1966

DIAG. 5 — PROVINCIAL GRANTS TO THE CITY OF EDMONTON ALLOCATED TO THE CURRENT REVENUE FOR MUNICIPAL PURPOSES.

payment by the Province of a portion of school operating and capital costs up to an adequate standard as provided by the School Foundation Program.

general revenues in the previous years and have aided in keeping the per capita property tax below that of many other major Canadian cities. Perusal of civic utility operations indicates a yearly gross revenue growth of six to nine percent. In the operation of utilities the City is entitled to a fair gross profit on investment of six to eight percent and this profit should be used in repaying debenture debts attributed to utilities or placed in a capital reserve for future capital improvements. Net utility profits should then be utilized in the best way and in recent years they have been used to balance expenditures against revenues, For example, annual utilities contributions and the utility revenue tax increased from 1.8 million dollars in 1956 to over 10 million dollars in 1966 or from 7.5 percent to 15 percent of the City's current revenues.

payment by the Provincial and Federal governments of a portion of operating and capital costs of all approved hospitals at the level of standard ward care. Substantial amounts are also provided by the Province to assist local health units and nursing services. a number of Federal and Provincial programs under the terms of which municipalities may borrow funds to finance the cost of certain projects at rotes below rates prevailing in the money market.

The Provincial and Federal governments have greatly increased their shore of providing revenues for the City over the previous ten years, amounting to 7.9 million dollars or 11.9 percent of total current revenues in 1966. Of this, the total grant by the Province was 6.9 million dollars as compared to 3.4 million dollars in 1956. Both the Federal and Provincial governments are expected to further increase their contributions to the City of Edmonton as they both have substantial powers for tapping new revenue sources. Ultimately, greater aid is expected in school education and urban freeway financing as recommended by the Province's Public Expenditure and Revenue Study Committee. In addition, the Government of Alberta is planning to create a special fund designed to enable cities to purchase lands for future freeway development. Cities would borrow from the fund at low interest rotes, thus enabling them to acquire and hold land without dipping into their year to year current and capital accounts.

DIAG. 6 — CONTRIBUTIONS FROM NET CIVIC UTILITY PROFITS AND FIVE PERCENT CIVIC UTILITY TAX 1956 TO 1966. 10

5% Utility Revenue Tax

1111 Utility Contributions

MILLIO NS O FDO LLA RS

UTILITY REVENUE TAX AND CONTRIBUTIONS Revenue taxes and contributions from Cityowned utilities added greatly to Edmonton's

Jh 1956

1 53

1958

1960

1962

1964

1966

Expenditures 70

Edmonton's Debenture Debt

Edmonton supports three major types of debt. One is the self-supporting debt which is incurred by the five public utilities and the local improvement property share debt incurred for the property owners by the City. Utility revenues and frontage taxes levied on property owners finance this debt. Civic utility debt increased from 22 million dollars in 1956 to nearly 56 million dollars in 1965, while local improvements debt increased from 18.7 million dollars to 34.5 million dollars in the same period.

Education

11111 Debt Charges I

I Other Expenditures

M ILL IO NSO FDO LLAR S

Another type of debt is that incurred by the City to finance construction of roads, bridges, parks, recreational facilities and sewers, etc. This general and sewer system debt is repaid by the City from general revenues and directly affects taxes. The need for additional bridges and roadways will greatly increase the general debt, while the sewer debt should decline in per capita terms. This debt has increased from 41.5 million dollars in 1956 to 95.9 million dollars in 1965. Post war inflation, capital improvements of a higher standard and carrying out of deferred improvements accounted for the growth of this debt.

ii 1

1956

1958

1960

1962

1964

The third type of debt is the net Public and Separate Schools debenture debt incurred for land purchases and school construction. The net school debt is not charged against the City as a corporation but rather against the taxpayer and property owner. This debt increased from 205 million dollars in 1956 to 44 million dollars in 1965. Under existing Provincial-Municipal financing arrangements the schools debt is ex-

1966

DIAG. 7 — CURRENT GENERAL EXPENDITURES FOR EDMONTON, 1956 - 1966. They maintained on average incremental increase of $5.5 million per year.

DIAG 9 — CITY OF EDMONTON TOTAL TAX LEVY PER CAPITA, 1956- 1966

DIAG. 8 — GENERAL AND UTILITIES CAPITAL EXPENDITURES FOR EDMONTON, 1956 - 1966. These expenditures will increase with utilities and transportation as major spenders. 50

120 110 100

M ILLIO N SO FDO L LA RS

90 80 30 cc

70 60

50 40

30 10

20 10

1956

1958

196C

1956

154

1958

1960

1962

1964

1966

Another possible source of relief to the City would be to fully transfer certain responsibilities to senior governments including medical services, hospitalization and welfare services.

pected to increase in the future in per capita terms due to the anticipated large increases in school enrollment and rising education costs. In recent years, however, the Province has recognized the increasing burden of schools financing for the property taxpayer and has been providing a greater proportion of the funds needed to finance the expanding education program. Between 1955 and 1965 the Province's contribution had increased from 34.5 percent to 42.4 percent of the schools' revenues.

During the past ten years the Province of Alberta has been reducing its gross public per capita debt, while the City of Edmonton debt has remained at a high level. In comparison the gross public debt per capita of the Province of Alberta decreased from 76.24 dollars in 1956 to 10.91 dollars in 1965 while the City's net funded debt per capita increased from 458.69 dollars to 608.67 in the same period. Perhaps no other statistic demonstrates as clearly the need for a more equitable distribution of revenues and responsibilities.

In 1966, approximately one out of every five revenue dollars was spent on retiring debt charges, more than any other category, excluding education costs. This is approximately five percent higher than the rate recommended by municipal finance experts. Edmonton was burdened with the third highest per capita net debenture debt (excluding school debt, net selfsupporting public utility debt and sinking fund) of the twelve largest cities in Canada in 1964. To improve Edmonton's debt position several courses of action could be taken. One possible solution is to make greater use of reserves and current revenue as a source of capital funds. This implies an increase to the taxpayers' current tax bill and may not be desirable since the per capita levy has in the meantime increased from $50.98 in 1947 to $108.80 in 1966. However, since Edmonton's current per capita tax levy is below that of most major Canadian cities, the City may be justified in increasing the tax levy to aid future capital financing.

CAPITAL PROGRAMMING Introduction The City of Edmonton is currently on the verge of the largest capital expenditures in its history. Roadway and bridge proposals, Civic Centre development, servicing of new areas, school expenditures, urban renewal and the maintenance of adequate utility services are some of the major items that will require financing. It is clear that present sources of revenue are inadequate to meet all the City's needs and it is essential that the public receive the best value for every dollar spent. Since all demands for new public facilities cannot be satisfied, good financial planning is necessary to ensure the optimum allocation of resources within the financial capacity of the City. Good financial planning will only be achieved through the implementation of a sophisticated capital improvement program.

Edmonton's unusually high assessment in non-revenue producing property, including residential land (65.7 percent of total assessment in 1966) indicates a shortage of industry and commerce. This unfavourable position could be improved by encouraging more industry to establish .in Edmonton and by inclusion of the Strathcona industrial area under Edmonton's jurisdiction as recommended in 1954 by the McNally Royal Commission in its report on the Metropolitan Development of Calgary and Edmonton. The Commission emphasized that wide variation in per capita assessment existed in the Edmonton Metropolitan Area and that a balanced tax base would be more desirable for a more equitable distribution of the realty tax. The problem of inequitable distribution of assessment in the Metropolitan Area still remains. With a view to the future, a commission should be appointed once again to study the effects of possibly establishing a strong central government for the purpose of providing efficiency, stability, uniformity of service, sufficient land for long-range planning and equity of taxation and assessment for the people of the Edmonton Metropolitan Area.

To date, the City has been preparing oneyear capital budgeting programs for capital expenditures. In addition, in 1962 the City prepared a three-year departmental estimate and in 1965, 1966 and 1967 five-year capitol expenditure estimates were prepared. In general, the capital estimates listed capital items projected by individual departments. While such o listing is valuable in providing an indication of the general level of future capital expenditures, the presently established procedure does not allow for the preparation of priority listings or a careful review of the City's proposed capital expenditures in light of community goals or General Plan objectives.

Definition of a Capital Improvement Program A capital improvement program is a longrange plan of capital expenditures extending over a period ranging from fifteen to twenty

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originates with the preparation of a long-range physical improvements plan, in Edmonton's case referred to as the General Plan. Following review and approval of the General Plan by the Municipal Planning Commission and City Council, the Planning Department will review the General Plan with all the City Department Heads. On the basis of information received as to rate and direction of growth and objectives of City development, each Department will prepare cost estimates of the desired public improvements. Concurrently, the Finance Department must prepare a long-range financial analysis of the City's future revenue patterns.

years. The program provides a picture of work to be performed and financial estimates. The program also consists of a capitol improvement budget which covers the first five years of the program and an annual operating budget. The more detailed five-year capital improvement budget will consider public improvements only, and covers facilities with a reasonably long life, large size and a fairly high value. The annual operating budget is the first year of the capital improvement program and contains a detailed list of capital expenditures and methods and resources with which to finance them. It is the vehicle which puts the capital improvement program into operation.

Following completion of the departmental estimates and a financial plan, the Department Heads will transmit their requests to the Planning Department which will then assemble and -co-ordinate the estimates submitted. The responsibility of co-ordinating the long-range

General Procedure in Implementing Edmonton's Capitol Improvement Program

The capital budgeting process or the implementation of the capital improvement program DIAG. 10

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PROPOSED CAPITAL IMPROVEMENT PROGRAM FOR THE CITY OF EDMONTON.

THE CAPITAL IMPROVEMENT PROGRAM RANGES FROM 15 TO 20 YEARS

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estimates lies with the Planning Department in view of the close relationship between a capital improvement program and the General Plan. In addition, the Planning Act requires that a general plan shall include "proposals relating to the financing and programming of public development projects and capital works to be undertaken by the municipalities or other public authorities having jurisdiction within the area included in the General Plan."

COUNCIL

BOARD OF COMMISSIONERS

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FINANCE .DEPARTMENT

While co-ordinating the long-range estimates, the Planning Department must also prepare a tentative schedule of priorities keeping in mind such major considerations as the City's financial position, the objectives of the General Plan and the relationship between the design and timing of projects and Provincial plans. Where there is doubt as to the placement of items in the list of priorities, assistance will be requested from the Departments and/or detailed cost-benefit studies will be prepared for the items. It should be noted that the capital budgeting process should also allow for adequate representation by interested citizen groups. For example, in some cities, notably Philadelphia, top flight citizen committees have analyzed the proposed capital program and made very worthwhile contributions to the achievement of a sound expenditure timetable and priority list for their city.

DIAG. 12 - GENERAL PROCEDURE FOR THE CAPITAL IMPROVEMENT BUDGET AND THE ANNUAL OPERATING BUDGET.

budget should be the responsibility of the Board of City Commissioners cind the Planning and Finance Departments. Since the Planning Department will be responsible for the five-year revisions to the General Plan, it will similarly be in a position to aid in staging to make recommendations for the five-year capital improvement budget. The Finance Department will be directly responsible for estimating the City revenues and expenditures and financial alternatives for the capital improvement budget and for its presentation.

Upon completion, the proposed program will be reviewed by all the Department Heads for final alterations. Following the review the Planning Department will prepare a final recommended program and will then present the Program for review by the Board of City Commissioners and Council. After review and approval by Council, Council will adopt, by bylaw, the capital improvement program as part of the General Plan.

The first year's total of the capital improvement program or the annual operating budget will be prepared by the Finance Department and submitted to the Board of Commissioners for their review and eventual presentation to Council for approval. The five-year capital improvement budget and the annual operating budget should be adopted separately. Council may alter or adjust the capital improvement budget as it sees fit and strike a mill rate to provide the necessary funds for the annual expenditures. Following approval by Council, the annual operating budget is implemented by the Board of City Commissioners and the Departments.

The administration and preparation of the more detailed five-year capital improvement DIAG. 11 - GENERAL PROCEDURE FOR THE CAPITAL IMPROVEMENT PROGRAM.

In summary, capital programming emphasizes planning, and is a valuable technique for centering attention on classes of expenditures which are difficult to evaluate and finance. A capital budgeting program for the City of Edmonton will provide a means of assuring that projects will be executed in accordance with predetermined priorities of need as well as the ability of the City to pay. In the long run, the capital budgeting process will aid in keeping the total cost of regular operations and improvements within limits of sound finance planning. Community resources can be allocated in the best way. Furthermore, the capital budgeting process,

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as part of the long-range plan, will enable the general public to plan their own investment in the community when they can see a clear and explicit statement of public projects to be built in future years. More than ever before private projects are being influenced by public programs; good financial planning will create a sense of common objectives for private and public interests.

Principles of Capital Programming

Financing the Capital Improvement Program Basically, there are two methods of financing that the City of Edmonton presently uses, cash payments and time payments. Payments made from the general revenue fund are referred to as cash payments. Every year City Council allocates a certain percentage of current account revenues to repay capital expenditures and in 1966 this amounted to 19.5 percent of current account expenditures, excluding utilities. A 100 percent pay-as-you-go policy in Edmonton is not feasible in view of the proposed volume and size of projects and programs such as roadways and bridges, schools, utilities and local improvements. In view of this situation, a large proportion of capital expenditures will continue to be financed over time. However, debt repayment must be related to Edmonton's resources and its ability to absorb such debts that are created. The greatest proportion of the future capital improvement program will undoubtedly be supported by property taxes. The rate at which tax-supported projects will be implemented will remain limited and will largely depend on the rate at which personal income increases and what proportion of the income is used to support City government.

The capital improvement program should be prepared by the Planning Department and reviewed and revised concurrently with the General Plan five-year revisions.

The capital improvement program should list: all major capital projects, proposed priority dates, approximate cost for each project, source of funds for the projects and make observations as to the feasibility of the suggested program in light of existing revenue sources.

The five-year capital improvement budget should be prepared by the Finance Department but with the assistance of the Planning Department to ensure compatibility with the General Plan and capital improvement program.

The capital improvement budget should list: all proposed capital projects, accurate cost estimate of each project, definite priority dates, means of financing, agencies responsible for carrying out the projects, all projects scheduled in the Capital Improvement Program and dates of construction and indicate generally the impact of the budget on current account expenditures and the property tax rate.

A detailed financial plan should be established indicating the sources of funds for the capital improvement budget and it should carefully analyze proposed expenditures in relation to debt structure, tax base and general wealth of the City.

The policies, procedures and performance of the capital improvement budget should be subject to annual review.

The annual operating budget, prepared by the Finance Department, must show each contemplated project in detail and include accurate cost estimates of each scheduled project. The annual operating budget should, in addition, carry a summary of the approved capital improvement budget.

Capital programming should emphasize planning, not budgeting or borrowing.

The needs of all City Departments should be co-ordinated through capital budgeting.

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The capital budgeting process should allow for adequate representation by interested citizen groups.

Objectives of Capital Programming 1.

To provide the City of Edmonton with an overall view of facility needs and improvements, their locations and priorities and their financing.

To develop the most desirable program of capital spending within Edmonton's financial capacity. The City administration will thus be in a much better position to make decisions authorizing capital spending and foreseeing any financial difficulties.

To plan and co-ordinate the various public works and improvement projects with one another and at the same time to allow adequate time for the preparation of engineering drawings, etc.

To provide the City of Edmonton with a guide for the implementation of a tax rate levy which does not fluctuate violently from year to year.

To provide a schedule which will aid private interests in co-ordinating their own projects with the City of Edmonton programs.

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Chapter XVI

URBAN DESIGN 5.

To employ the best design for municipal traffic signs and street furniture and to require placement of all utility wires underground.

To express regionalism in design by making optimum use of the character of the landscape, vegetation, climate and natural resources.

To eliminate or redevelop blighted and offensive commercial, industrial and residential areas.

To provide for the non-physical and cultural aspects of design such as annual parades and similar activities, historical preservation and continuity and symbols expressing the progress and character of Edmonton.

To adopt a publicly sponsored program with tools to guide the design of all types of construction, both public and private, in the best locations while, at the same time, demanding good design as a way to achieve beauty and order in Edmonton.

The new design can be realized through cooperation between private and public action with guidance from public policy and leadership. However, we must be knowledgeable of what is good and insist on the best without limiting ourselves to rigid controls and ideals.

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To establish an urban design panel that will provide design leadership, review and advisory services.

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To create and enforce up-to-date building codes and zoning legislation.

OBJECTIVES OF THE NEW DESIGN

PRINCIPLES FOR THE NEW DESIGN

INTRODUCTION Rapid growth creates numerous shortcomings where little emphasis is given to aesthetic values, unifying elements and to the creation of a strong structure and identity. Edmonton's downtown area has been shaped and circumscribed by natural features, by a grid pattern of streets and blocks and by railway yards. However, natural features are no longer major factors in determining the City's physical form and growth. The physical form is now constantly being altered by new buildings, roads, bridges, functional areas and cultural values. We have the necessary resources and the opportunity to embrace these elements into a unified visual expression and to create an exciting image for Edmonton. A sharper sense of visual order, scale and physical beauty can be made evident. A visual design concept for Edmonton is an essential part of the General Plan requiring continuous review and adjustment. It must focus attention upon existing virtues and identifiable parts of merit present in Edmonton.

1. A Good Visual Effect and an Exciting Skyline

To ensure that Edmonton is an efficient and enjoyable place for the people who live and work in it and for those visiting the City. To establish a sense of order with reasonable variety and contrast, visual unity, beauty and scale to streets and buildings and to relate them to open spaces.

To seek the best relationship within and between major use areas.

To adequately regulate the use of billboards, store front signs and all forms of street furniture.

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Buildings and open spaces in Edmonton should be of different sizes and shapes scaled to human proportions. Each individual building or group of buildings should be designed as part of a whole composition to provide visual stability. This can be accomplished through the following channels: â&#x20AC;&#x201D; the architect should first diagnose that part of the City for which he is designing and then relate his building to the components of the area.

consists of a level plain. It is important that this landscape features orientation towers properly arranged with reference to one another and extensive tree planting.

â&#x20AC;&#x201D; an assessment of the type of terrain to be built upon must be made since each individual piece of land will lend itself to a design which will express the best relationship between the building and site. The most outstanding visual and physical feature of Edmonton is the River Valley, its bluff and the ravines. These handsome topographic features must be respected and enhanced. The bluff should be landscaped along the River and should offer observation points, interesting skylines and pleasant drives.

â&#x20AC;&#x201D; the appearance of individual buildings should be considered from the actual vantage points from which they will be seen and should be designed with utmost care. A development comprising one large tower requires a more distinguished design than a development consisting of a cluster of towers. Twin or triple towers can be designed to complement each other and, therefore, may be more modestly designed to give the same effect.

BLUFFS ALONG THE RIVER AND RAVINES SHOULD BE LANDSCAPED AND OFFER OBSERVATION POINTS AND INTERESTING DRIVES.

size and orientation of buildings can be arranged for the best possible visual effect. Similarly, color and textural characteristics of the landscape and foliage covering the bluff can be advantageously used to enhance the buildings. The bluff supporting the downtown has green and brown color characteristics for the most part of the year, with snow during the winter. In order to obtain the maximum visual effect, buildings protruding from the bluff should be of light colors with dark accenting trimmings.

THE APPEARANCE OF INDIVIDUAL BUILDINGS SHOULD BE CONSIDERED FROM THE ACTUAL POINTS FROM WHICH THEY WILL BE SEEN.

c. The City should also offer view points from the street level; traffic islands, skywalks, elevated streets and similar installations could provide a view of movement and architecture.

apart from the River Valley and the ravines, the remainder of Edmonton

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b. Numerous streets in Edmonton are congested with all types of traffic, have a diversity of uses, buildings and activities and lack entity. To give these streets an entity and order without rigidity, unifying devices should be applied:

2. Toward Attractive City Streets a. Edmonton's streets of intensive _activity should have both visual and physical interruptions as well as vistas to give them a feeling of enclosure, fluidity and entity. This may be achieved by: — introducing visual interrupting devices such as skywalks or by placing a large building or small treed park at the focal or terminating point of a long street.

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control may be exercised as to the length of street frontage permitted to any single use in strip commercial areas.

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continuity between buildings and open spaces can be achieved through street lighting, sidewalk patterns, awnings, rows of trees and architectural design. Where the buildings are arranged too rigidly, a contrasting or free disposition of trees can provide an element of relaxation. Such pedestrian connectors as trees should be extended from the proposed Coliseum site westward on 102A Avenue to the proposed shopping mall on 102nd Street and from Jasper Avenue north on 99th and 100th Streets to 103A Avenue. Large trees should be used in planting programs wherever possible.

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small blocks can be consolidated into larger blocks for simpler traffic circulation and streets not essential for traffic could be turned into pedestrian-ways.

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in high density downtown pedestrian areas rows of tiny shops, bus shelters, telephone booths, etc. can be used to screen as well as to provide continuity for pedestrians passing surface parking lots and multi-storey parkades.

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space within buildings should bear a direct relationship to the immediate outside environment, whether it be streets or plazas. For example, ground surfaces can be of a similar texture both inside and outside a building.

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c. Street furniture is one of the most conspicuous elements of a street and often is the difference between making a street pleasant or unattractive:

setting off a building or groups of buildings from the normal building line or by breaking a line of buildings with a plaza to make the building beyond the plaza stand out as an interruption. These interruptions, however, should not be physical and there should always be a way around or through the visual interruption. Similarly, the lower portions of buildings may be set back equally from the street and their towers may be arranged quite irregularly.

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greater emphasis must be placed on wide landscaped boulevards, good street lighting and, in general, elegant, contemporary design in street furniture.

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careful control over billboards and store front signs should be exercised, particularly near residential and park areas.

e. Edmonton must have a thorough and regular dirt and rubbish cleaning program. Removal of snow, sand and mud in the spring should be undertaken as early as possible. Lane marker lines, crosswalks, lamp posts, benches and garbage receptacles should be painted regularly and kept clean for safety and better appearance.

3. Designing the Downtown for the Pedestrian a. Pedestrian movement must be convenient with a minimum number of interruptions to movement. Some devices for making pedestrian movement more efficient in Edmonton are: — sidewalks of adequate width. — segregation of pedestrians and motor vehicles. Underground, surface and overhead pedestrian concourses connecting parking, shopping and work areas will accentuate downtown's attractiveness for the pedestrian.

WHEREVER POSSIBLE, ELECTRICAL WIRING SHOULD BE PLACED UNDERGROUND AND MUNICIPAL TRAFFIC SIGNS AND STREET FURNITURE SHOULD BE CONTEMPORARY IN DESIGN.

d. The City should encourage owners of antiquated buildings to modernize or replace them with up-to-date structures. Some buildings could be vastly improved by mere steam cleaning, sand blasting and painting. Old buildings worth saving should be improved in a manner that will continue their usefulness while maintaining their character. DIAG. 1 - ATTRACTIVELY LANDSCAPED PEDESTRIAN-WAYS AND EXTRA WIDE SIDEWALKS WILL PROVIDE IMPROVED CIRCULATION AND PHYSICAL SEPARATION BETWEEN VEHICLES AND PEDESTRIANS.

UNDERGROUND PEDESTRIAN WALKWAYS WILL REDUCE TRAFFIC CONGESTION AND WILL MAKE THE DOWNTOWN MORE ATTRACTIVE FOR THE PEDESTRIAN.

the provision of pedestrian-ways throughout the interior of major blocks in office and retail shopping areas. This technique would be especially appropriate in areas where sidewalk capacity in the perimeter of the block could not be feasibly increased. densely developed shopping streets with large pedestrian volumes should be converted into malls or walking zones if they do not seriously impede traffic circulation.

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b. Walking in the downtown should be as much a pleasure as strolling in a park or country. Some devices for making downtown Edmonton more enjoyable for the pedestrian are: — protection from inclement weather could be given to the pedestrian ranging from the simple but effective awning to the fully enclosed and acclimatized promenade. Enclosed walkways could contain within them mall areas, rest areas and other attracting features. — spacious sunny squares, outdoor restaurants for summer use and arcades should be part of the pedestrian-way. Infra-red lamps could be installed to keep these pedestrian areas comfortably warm and encourage winter shopping. — landscaping for pedestrian and rest areas should be of the highest quality and design. — meeting places of some historical significance which are removed from traffic should be provided near major shopping, entertainment and dining areas. — promenade or pedestrian areas should be especially well illuminated to provide the pedestrian more security in the evening. Besides making the downtown safer at night, night-time illumination can transform the downtown into a festive place to which people will want to come; lighting

DIAG. 3 — FUTURISTIC VIEW OF PEDESTRIAN MALL FOR 101A AVENUE LOOKING WEST FROM 100A STREET. A dominating focal point, rest areas, attractive landscaping, distinctive paving and free movement are features that will make walking in downtown Edmonton a pleasant experience.

can also enhance architecture and stimuate commerce. c. Due to the high cost of downtown land, private business must be encouraged to provide small plazas, squares and courts within their development schemes. In order that these outdoor plazas do not lose their popularity during the cold winter months, they should be designed so that some form of relationship exists between them and indoor spaces of buildings. Buildings like the Royal Bank Building on 101st Street and Jasper Avenue have within them indoor meeting spaces, but they lack unity with the outof-doors. 4. Quality in Parking Design a.

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Surface parking reduces the amenities of an area, therefore, curb-side parking should be severely controlled in certain parts of downtown Edmonton, particularly in the Civic Centre. Where surface parking lots are an interim use they should be landscaped, paved and effectively screened pending conversion to other uses. An intelligent use of trees, shrubbery, flowers and rock groupings could be applied skillfully to improve many unsightly parking lots in Edmonton. Both the City and private developers can afford some "luxury" and, at the same time, civic pride. On-street parking in residential areas having narrow streets should be restrict-

ed to one side of a street. Residents should be encouraged to use off-street parking to enhance the appearance of the street and for safety and smoother traffic flow. c. Parking structures should be of good design and should not lower the aesthetic standards of the surrounding buildings. Parking garages should preferably be placed underground and their roof decks covered by buildings or converted into green spaces and plazas.

topography. Topography will generally dictate the type of streets, whether curvilinear or rectilinear which are placed into a neighbourhood. Residential areas could be screened from the noise and fumes of heavy traffic by banks of earth sloping towards the road and planted compactly with trees, bushes and grass. These walls would be an obstacle to jay-walking across the road and would provide the pedestrian in residential areas with safe, healthy and pleasant walking conditions. Large existing grid pattern areas could be attractively broken up with parks, new roadways and comprehensive apartment developments and still maintain continuity with adjacent areas. Lot sizes and shapes often determine the appearance of a neighbourhood and should be of varying sizes in order to encourage variety in design and sizes of homes. Great pains can be taken to

EXISTING OLDER HOUSING IN GOOD RESIDENTIAL AREAS MUST BE PRESERVED AND PROTECTED FROM APARTMENT INTRUSIONS.

C.N. STATION. A good example of pedestrian loading and unloading facilities.

5. Designing Pleasant and Distinctive Residential Areas a.

Edmonton has been fortunate to inherit a few residential neighbourhoods characterized by large trees. These trees give beauty to their streets, providing shelter and privacy for the homes. The City must do everything possible to protect them. A primary element to consider in designing a neighbourhood is the character of

FULLY GROWN TREES IN RESIDENTIAL AREAS MUST BE PROTECTED.

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of Edmonton will have a choice of accommodation in a variety of areas.

design streets but little will be achieved if there exists no relationship between buildings, street design and .lot • shape or if they lack total design or variety in design. f. To add variety to residential neighbourhoods, blocks should vary in size and shape and should contain focal or accent points such as churches and apartment building clusters near shopping centres. g. Detailed site design, such as the placement of buildings, should consider the following regional influencing factors: — the angle of the sun and prevailing winds should be studied in relation to building massing and placement. In Edmonton, where the sun is the hottest during the late hours of a summer afternoon it will be desirable to shield this light whereas during winter, it will be desirable to receive some direct sunlight. — prevailing breezes should be studied to determine the location of building entrances and balcony locations.

6. Accepting Industry Into the Urban Environment a.

The topography of industrial land should be studied for potential screening of unsightly buildings, parking lots and storage areas. Landscaping of industrial areas should be simple and bold and existing trees should be utilized. Where the planting ' of trees is necessary, they should be

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ATTRACTIVE RESIDENTIAL NEIGHBOURHOODS ARE OFTEN MARRED BY OVERHEAD UTILITY LINES.

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Apartment development should be very carefully controlled and should be permitted only in designated areas. Existing older housing in good residential areas of distinctive character establish a character and flavour of their own and this quality must be preserved and protected by a definite policy from apartment intrusions. Diversity will be maintained in this manner and the citizens

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grouped to form dense masses in order to contrast with the usual lineal road system and mass of buildings. Functional structures and buildings, such as chemical plants and refineries, can be very attractive features of the landscape through architectural order, detail and imaginative painting. Scattered industrial and service uses should be persuaded to move to industrial

8. Creating an Image for the City a. The citizens and visitors alike should have a clear picture of the City, of what it has to offer, its functions and where the various activities and features of the City are located: — functional areas of the Central Area and more of the rest of the City should be emphasized. Location of such areas as the Civic Centre, shopping areas and the University should be segregated so as to be clear to the visitor and citizen alike. — outstanding attractions such as the Storyland Valley Zoo, the City Hall, the Legislative Buildings and the ravines and parks should be made to stand out through careful and handsome design of detailed features enhancing these attractions.

estates if they are non-conforming with the surrounding uses. 7. Linking the Past to Present and to the Future a. Structures of historic and architectural distinction should be preserved and restored to reflect our taste and culture of different periods, to provide continuity with the past and to add to the individual character of Edmonton: — historic structures are those associated with important events, people, institutions or public history. — structures of architectural distinction are those that are outstanding in design, are good examples of a particular style or period or are an example of a notable work of a distinguished architect.

PLANS FOR DOWNTOWN EDMONTON SHOULD INCLUDE PROVISIONS FOR PARADES AND FESTIVITIES.

RUTHERFORD HOUSE. This dwelling was constructed in 1911 and is of historical and architectural interest to the people of Edmonton. It should be retained and restored to its original state and incorporated into the overall plans for expansion of the University.

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structures officially designated to be preserved should be protected by legislation and should be properly maintained and given a proper setting so that succeeding generations can enjoy them. Such uses should be found for the buildings so that the buildings can remain an integral and active part of life in the City.

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A study of Edmonton is necessary to determine where it would be best possible for both the City and private developers to maintain a uniform design objective. In key areas, like the Civic Centre, each proposed development and remodeling should be carefully reviewed to ensure that it fits into the overall design of the areas. Provision should be made for non-physical aspects of design, such as outdoor art exhibits, annual parades and festivities expressing the character and history of Edmonton.

Chapter XVII

IMPLEMENTATION certain policies but should maintain, where possible, the overall objectives and principles of the Plan.

INTRODUCTION The General Plan The Edmonton General Plan contains plans, recommendations, objectives and principles for all phases of urban development. The foregoing sixteen chapters have set a pattern for future community growth and improvement to provide space for all urban activities in the most suitable locations and with a minimum of friction. In order to make these various elements a meaningful guide to development, an overall program for their implementation must be developed. The realization of the objectives outlined in the General Plan for Edmonton is dependent upon the tools available for its implementation and upon how effectively they are utilized. Effective implementation of the General Plan can best be achieved through the use of six components: a General Plan Bylaw, zoning, land subdivision control, development schemes, capital improvement programming and urban renewal.

The Legal Status of the General Plan Planning in Alberta is under the jurisdiction of the Planning Act (1963) which outlines the legal status of the General Plan. The Act (s. 95-1) states that: A council may resolve to prepare a general plan describing the manner in which the future development or redevelopment of the municipality may best be organized and carried out, having regard to considerations of orderliness, economy and convenience.

It is obvious that the Plan or a condensation of it must be adopted by bylaw if it is to effectively perform its intended function. Section 97, subsection 1 of the Planning Act makes provision for the adoption of the Plan by Council. Once the Plan has been adopted by Council, it or any other public authority, cannot enact any bylaw or take any action which is inconsistent or at variance with it (s. 99-b).

The General Plan contributes to the future development of Edmonton primarily in two ways. Firstly, it provides a summary of important objectives which the City should attain or attempt to attain during the Plan period. Included with each set of objectives are a number of principles which outline the best means of achieving the objectives. Secondly, the Plan points out deficiencies in present City regulations. It is beyond the scope of this document to remedy these faults but their correction is essential if the objectives of the General Plan are to be attained. For example, the preparation of a Parks Master Plan and the revision of present apartment zoning regulations are two such deficiencies which should be rectified.

The adoption of the General Plan makes it mandatory to provide a zoning bylaw to regulate the use and development of land in the manner prescribed in the Plan (s. 99-a). It is stated in the Act (s. 133-2) that when a council adopts the plan it must adopt it in its entirety including all its maps and documents. Furthermore, any inconsistency between the General Plan and the Regional Plan must be corrected (s. 79-b). The enactment of the General Plan Bylaw involves the submission of the Plan and Bylaw to the Provincial Planning Director for advice as to its content and later to the Provincial Planning Board for approval. The City must officially advertize the Plan, hold public hearings concerning it and provide copies at a reasonable cost for the use of the general public. Council may amend or repeal the General Plan Bylaw (s. 1341).

The Plan is a dynamic instrument of broad public policy which requires constant review and revision when and where necessary. It should be completely re-analyzed every five years as required by the Planning Act (s. 98) which states that "The council shall completely review the general plan once every five years after its adoption and may, by bylaw, amend the plan." This review may clarify, amplify or adjust

The Plan's objectives, principles and standards which are established to guide future

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recognition to Council's role in directing the development of the City. The General Plan Bylaw will have two broad functions. Firstly, it will convey a concept of the physical form of the future City. Secondly, it will outline the pertinent objectives, policies and programs of City Council by which this concept may be achieved. The Bylaw sets out the City's broad, long-term plan of development. It does not govern particular sites directly but rather expresses Council's intentions.

development are both literate and graphic and are, together, the City's official policy. However, other data and material which are not of this kind or are of a historic nature also appear in this document as illustration, background, support or explanation to the Plan. These are not official statements of policy but rather are necessary for the clarity, understanding and completeness of an acceptable Plan document.

Objectives for the Implementation of the General Plan 1.

To ensure that the necessary tools for the implementation of the General Plan are available.

To ensure that various sections of the Plan are implemented at the proper time and in the proper place as outlined therein.

Shortly after the General Plan is published, an accompanying document, the Draft General Plan Bylaw, will be presented. Important objectives and principles outlined in the General Plan will be contained in this document and, after extensive discussion and revision by Council, City officials, businessmen and other citizens, a General Plan Bylaw will be presented for adoption by Council. The purpose of this Bylaw is to describe the manner in which the future development and redevelopment of the City may best be organized and carried out, having regard to considerations of orderliness, economy, convenience and the goals of the community so as to achieve a functional and pleasant physical environment for the citizens of Edmonton.

Principles for the Implementation of the General Plan 1.

It is essential that a General Plan Bylaw be adopted in which the objectives and principles contained in the General Plan are approved.

Alterations and additions to the City's land use pattern as outlined by the 1981 Land Use Plan and its accompanying text should be added to the zoning maps.

Suggested changes in the Zoning Bylaw, as outlined in this Plan, should be investigated and, where necessary, required alterations made.

The subdivision of land should be undertaken in accordance with the objectives and principles contained within this Plan.

New or expanded physical facilities for the City which are large, expensive and relatively permanent should b e provided through capital improvement programming as outlined in Chapter XV.

Aging and deteriorated areas of the City rehabilitated or redeveloped should be through urban renewal schemes.

Zoning The Zoning Bylaw is an immediate set of regulations designed to cope with development problems of the present and to protect the land that will be developed in the future. It offers property owners assurance of what they can do with their property and what may happen on their neighbours' properties. Zoning is the division of a community into areas for the purpose of regulating the use of land and buildings, the height and bulk of structures, the proportion of the lot that may be covered by them and the density of population that they may house. The enactment of the zoning ordinance and its subsequent administration are the legislative and administrative processes for carrying out the land use provisions of the Plan. Provisions for zoning as a result of the General Plan Bylaw are included in the Planning Act (s. 99-a): When a general plan has been adopted, (a) the council shall proceed with the enactment of a zoning bylaw to regulate the use and development of land in the manner prescribed and within the area or areas referred to in the general plan.

INSTRUMENTS OF IMPLEMENTATION

The adoption of the General Plan Bylaw will result in a revision of the present Zoning Bylaw only where review or revision is called for by the Plan or when a section of the Plan is to be implemented.

The General Plan Bylaw As mentioned earlier, Provincial, legislation permits Council to adopt a General Plan Bylaw to enable the utilization of the Plan as a guide for future urban growth. The adoption of such a Bylaw is essential to give formal status and

The Planning Act also provides development control procedures to guide growth during the

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lease by the municipality of such land and buildings as are necessary to carry out the development scheme,

interim period when the Plan and the Zoning Bylaw are being prepared and zoning caveats to provide land use control in lieu of any other land use control. The purpose of zoning is to assist in orderly development and growth. Zoning should recognize the variations of land use and development as well as their changes. It should cover the entire City; it should preserve the character of the neighbourhood where possible; it should exclude new uses which are prejudicial to the restricted purposes of the area; it should gradually eliminate non-conforming uses; it should permit spot zoning only where it is in the public interest; it should stabilize and protect property values and uses from sudden or haphazard changes; and it should consider the value of aesthetics. Land Subdivision Control The process of land subdivision review and approval is a major tool for the accomplishment of Edmonton's General Plan. Every time a new land subdivision with its streets, blocks, lots and open spaces is laid out, a piece of City development and planning has been achieved. Whoever plans a subdivision plans part of the City. Subdivision regulations set forth the policy and standards which govern the division of large parcels of land into smaller parcels. Subdivision controls set forth the community's policies regarding the acquisition of sites for public uses, paving streets, street and lane widths and development standards, etc. Properly developed and administered subdivision regulations ensure the integration of each new subdivision into the overall land use pattern of the community.

(b)

reserve land for future acquisition as the site or location of any public roadway, service or building or for a school, park or other open space and make such arrangements with the owners of the land as will permit its acquisition and use for those purposes,

(c)

specify the manner in which any particular area of land is to be used, subdivided or developed, and regulate or prohibit the construction of buildings that would interfere with the carrying out of the development scheme, and

(d)

make available any land for agricultural, residential, commercial, industrial or other uses of any class at any particular time.

The development scheme must describe and set out the manner in which the scheme is intended to implement a proposal, the land and owners affected by the scheme and the details of the scheme including the type of development, the land to be reserved and the manner in which land affected by the scheme is to be subdivided (s. 115). Development scheme bylaws are powerful means by which the General Plan can be implemented as considerable flexibility may be maintained within the terms of each scheme. It is possible to employ these bylaws in many diversified ways, for example, future freeway rights -of-way can be protected by such bylaws to en sure that costs of land acquisition will not be unnecessarily increased by new development which could interfere with the proposed route. Development scheme bylaws can also be used to create better standards of comprehensive development throughout the City. This development could take the form of an apartment complex, on apartment-shopping centre complex and so on. Development scheme bylaws may be used to implement a great variety of General Plan proposals and are a valuable means of General Plan implementation. To date, only two bylaws of this type have been passed but, in the future, it is expected that greater use will be made of these schemes.

The control over subdivision as outlined in the Subdivision and Transfer Regulations in the Planning Act enables roads and parcels of land to be laid out in a desirable pattern in accordance with the Plan and Zoning Bylaw. An important part of the implementation of the General Plan is the preparation of detailed, comprehensive development plans for new subdivisions and replot areas. These plans enable detailed subdivision layout and zoning to be adopted as a part of the Plan. Development Schemes Section 114 of the Planning Act states that Council, by bylaw, may adopt a development scheme to ensure that any proposal contained or to be included in the General Plan will be carried out or will be carried out in a particular manner. The development scheme may:

Capital Improvement Programming Capital improvement programming is a means by which public construction is used to encourage the realization of the objectives and principles contained within the General Plan. The whole range of public works and capital expenditures is fundamental to the achievement

(a) provide for the acquisition, assembly, consolidation, subdivision and sale or

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that the regulations or provisions of the Plan be administered by the appropriate departments of the City on a day-to-day . basis. To administer the Plan in such a manner requires the need for inter-departmental consultation and co-ordination plus a thorough understanding of the contents of the Plan by all departments concerned with Edmonton's growth and development. Once the General Plan has been adopted by action of Council, the formation of an administrative organization to direct and co-ordinate the daily inter-departmental decisions and operations leading toward the achievement of the goals and objectives of the Plan is imperative.

of the Plan, but, until the General Plan has been prepared, there,is no basis upon which the longrange capital improvement needs of the community can be intelligently set forth. A sound capital budgeting process is essential if there is to be assurance that the City's capital funds are being spent constructively and not just in response to expedient demand. Chapter XV outlines objectives and principles in regard to capital improvement programming for Edmonton but the description of the program itself will require a separate study. Some elements of this Plan cannot be implemented without direct action by the municipal government to acquire property and construct public works. The Plan requires these expenditures to be programmed in a long-range capital improvements program. The purpose of the capital improvement program is to present schedules of acquisition, major construction and alteration of facilities for public use over the Plan period. A capital improvement program should indicate the relative importance of the capital expenditure projects, list the various improvements which should be undertaken, set forth an order of construction based upon community needs, list individual and total estimated project costs and indicate the effect of individual and total estimated costs upon total expenditures and tax rates.

THE ROLE OF CITIZEN PARTICIPATION IN THE IMPLEMENTATION OF THE GENERAL PLAN The ultimate success of the General Plan depends upon public understanding, interest and support. While the responsibility for transforming the Plan into public policy rests with the local government, a truly effective program of implementation must include voluntary co-operation of Edmonton's citizens. The people must realize that the basis of this Plan is the health, welfare, beauty and enjoyment of the community as a whole. When citizens of a community fail to understand the reasons for specific, as well as general proposals, positive action is rarely attainable. This understanding can be achieved by clarifying and outlining the basic objectives of the Plan at public meetings, through newspaper articles and through exhibits, talks and panel discussions.

Urban Renewal Chapter XI outlines the various type of urban renewal projects and the Federal and Provincial financial aid available for various stages of each project. Suffice it to say here that the urban renewal scheme planned by the City and financed with the aid of Federal and Provincial help is an important means of implementing parts of the General Plan.

Widest possible publicity should be given the Plan prior to its adoption by Council. This can best be achieved through a summary brochure describing the General Plan being distributed to every household in Edmonton. By this action it is hoped that the citizen will become more aware of the value of planning in improving the physical environment of the City to make it a better place to live. Public awareness and understanding of Edmonton's General Plan should result in active support of the Plan and the implementation of its policies.

The Need for Co-ordination and Administration Implementing the General Plan raises a major administrative question, namely â&#x20AC;&#x201D; how can effective co-ordination be achieved between the municipal agencies which, in one way or another, regulate the use of land? It is essential

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ATTEND PUBLIC MEETINGS AND SEND YOUR COMMENTS TO:

Director of Planning City Hall Edmonton, Alberta

AND THUS HELP TO MAKE EDMONTON A BETTER PLACE IN WHICH TO LIVE.

CONTRIBUTING STAFF

The preparation of this Plan extends back through the last three

years and many contributions hove been made to it during this period. Special acknowledgements are made to W. G. Hardcastle, former Director of Planning and to E. T. Clegg, former Senior Research Planner.

S. C. Rodgers P. Ellwood

Director of Planning Assistant Director of Planning

RESEARCH DIVISION W. Walchuk

Senior Planner

E. C. Brown

Assistant Planner

N. Werner

Planning Assistant

E. Dmytruk

Planning Assistant

I. Birds

Planning Assistant

E. Nozack

Draftsman

M. Hale

Draftsman

I. Juhosz

Draftsman

P. Leonardis

Stenographer

M. B. Weir D. A. McCullagh R. Francis

_Senior Planner, Zoning Division Senior Planner, Urban Renewal Division _Assistant Planner

R. Scotnicki

Planning Assistant

N. Chumer

Planning Assistant