61N •LAIC13 d e Al l3 H I ii
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GENERAL PLAN
CITY OF EDMONTON ALBERTA
OFFICE CONSOLIDATION
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Bylaw No. 4911
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Bylaw to Amend Bylaw 3279, The General Plan Bylaw
- WHEREAS Council on the 18th day of May, 1971 by Bylaw adopted a General Plan for the City of Edmonton and WHEREAS the Municipal Council deems it - advisable to amend the objectives set out in Chapter 10 of the General Plan relating to Central Area Development. NOW THEREFORE, the Municipal Council, duly assembled, enacts as foI lows: ly
Chapter 10, Central Area, is hereby amended deleting from
the Central Area Objectives the following:
11 5. To encourage Central Edmonton to serve as an attractive high density residential area for persons requiring a Central Area residence location." And by sebstituti ] therefore the following: 5. To .eacourage Central Edmonton to serve as an attractive multidensity residential area, the planning for which: (a) takes into account the historical character and particular social and physical needs of existing communities in this innercity area, and
L i
-2-
(b) discourages and minimizes instability and disruption which typically have followed from major redevelopment pressures in the communities."
READ a first time this
day of
READ a second time this
day of
READ a third time this
day of
A.D. 1977. •
A.D. 1977. A.D. 1977.
THE CITY OF EDMONTON
(SIGNED) "T. J. CAVANAGH"
Mayor
(Sf-CriED) "C. J. !,!:-.GONIGLE"
City Clerk
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APPROVE° As to Fah „. City Sojir it or
1
As to oeJ ts-
BYLAW NO. 5184 (AMENDED)
I
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Pillrw104%
-Being a bylaw to amend Bylaw 3279, The General Plan Bylaw, as amended
/ 411 'alathissioner
WHEREAS The Planning Act, being Chapter 276 of The Revised Statutes of Alberta 1970, as amended, provides that the General Plan may be amended by bylaw; and WHEREAS the Municipal Planning Commission at its meeting of August 18, 1977, supported the Groat Estate Implementation Plan, which included a recommendation for certainamendments to the General Plan Bylaw; and WHEREAS it is deemed in the public interest to amend the General Plan.
NOW THEREFORE the Municipal Council of The City of Edmonton, after due compliance with the provisions of The Planning Act of Alberta and duly assembled, enacts as follows: 1.
Bylaw 3279, The General Plan Bylaw, is hereby amended.
2.
Chapter X, "Central Area", of the General Plan is hereby amended
as follows: (a) by striking out the words "the Groat Ravine" in the last paragraph on page 10.1 and substituting therefor the words "124th Street"; (b) by deleting that portion of Groat Estate south of Stony Plain Road from the designations of "Central Area" and "Central Area Expansion" as presently shown on Diagram 1 "The Central Area" on page 10.1 and by replacing Diagram 1 on page 10.1 with the diagram which is attached as Appendix "A" co and incorporaed as part of this Bylaw. (c) by deleting that portion of Groat Estate south of Stony Plain Road from the designation of "Central Residential Reserve" as presently shown on Diagrath 2 "Central Area Functional Uses" on ozwe 10.8 and by replacing Diagram 2 on page 10.8 with the diagram which is attached as Appendix "B" to and incorporated as part of this Bylaw.
3.
Chapter V, "Residential Development
the General Plan is
hereby amended by excluding Groat Estate from the areas designated as "low-medium density with converted dwelling and some smaller apartments up to 90 persons per acre" and "high density - up to 300 persons per acre" as presently shown on Drawing 1 "Residential Density by Area" on page 5.3 and including Croat Estate in the designation of "low density predominantly single family residential - up to 40 persons per acre"
and by replacing Drawing 1 on page 5.3 by the drawing which is attached as Appendix "C" to and incorporated as part of this Bylaw. recessed. In 9
READ a first time this
14 day of October
A.D. 1977. (as amended
READ a second time this
14
A.D. 1977. (as amended) recessea
day of October
READ a third time and duly passed this
mt. .7.
14 day of October
A.D. 1977.(as amende: special mty.
THE CITY OF EDMONTON
(SIGNED)
CAVI-.11A0N"
Mayor (SIGNED) "C. J. McGONiGLE"
- City Clerk
Chapter X
CENTRAL AREA the City's greatest concentration of pedestrian and
INTRODUCTION
vehicular traffic; the focus of the transportation
The Central Area is the heart of the City. It is an 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.
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 high-rise 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).
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.
DIAG. 1 — THE CENTRAL AREA.
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CORE AREA CORE AREA EXPANSION
7
CENTRAL AREA CENTRAL AREA EXPANSION CENTRAL AREA BOUNDARY PEAK PEDESTRIAN INTERSECTION PEAK LAND VALUE INTERSECTION
10.1
11111111111111"1" C1=1 1 0
KEY FREEWAY RIGHT OF WAY CORE RETAIL OFFICE RESIDENTIAL & SPEC. OFFICE CENTRAL RESIDENTIAL RESIDENTIAL & INSTITUTIONAL CENTRAL RESIDENTIAL RESERVE CIVIC & GOVERNMENT CENTRES LOW DENSITY RESIDENTIAL GENERAL COMMERCIAL RIVER VALLEY UTILITIES INDUSTRIAL AREA WHOLESALE DISTRIBUTION CNR STUDY AREA URBAN RENEWAL STUDY AREA DIAG. 2 - CENTRAL AREA FUNCTIONAL USES
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LOW DENSITY - PREDOMINANTLY
FAMILY RESIDENTIAL - UP. • I SINGLE TO 40 PERSONS PER ACRE LOW-MEDIUM DENSITY WITH CONVERTED DWELLING & SOME SMALLER APARTMENTS - UP TO 90 PERSONS PER ACRE
1
1
MEDIUM DENSITY - UP TO 150 PERSONS PER ACRE
HIGH DENSITY - UP TO 300 Eli PERSONS PER ACRE
EDMONTON GENERAL PLAN
DWG.
RESIDENTIAL DENSITY BY AREA
1
RESIDENTIAL DEVELOPMENT
CHAPTER V
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The
Ciiy of Edmonton
• 'lad at
is
BYLAW NO. 4445 A Bylaw to amend Bylaw 3279, The General Plan Bylaw 1.
WHEREAS The Planning Act, being Chapter 276, Revised Statutes
of Alberta, 1970, provides that the General Plan may be amended by bylaw; and 2.
WHEREAS at its meeting of August 13th, 1973 in Bylaw 4149
Council was presented principles of sign control which had been approved by the Municipal Planning Commission; and 3.
WHEREAS at its meeting of August 13th, 1973 Bylaw 4149 was
laid over and the Administration directed to consult with the Alberta Sign Organization. NOW THEREFORE the Municipal Council of The City of Edmonton after due compliance with the provisions of The Planning Act and duly assembled enacts as follows: Bylaw 3279, the General Plan Bylaw, is hereby amended by adding to Chapter XVI the following: 1.
By adding under "OBJECTIVES OF NEW DESIGN" the following
Objective No. 11: 11. To protect the visual quality of the environment through the adequate regulation of Signs. 2.
By adding under "PRINCIPLES FOR THE NEW DESIGN" the following
new paragraph No. 9: 9. Signage Design Principles (a ) Signs should be properly scaled to the development of a site, building or area with respect to size, height, shape and
- 2
BL. 4445
numbers. (b)Signs should generally respect the architectural style of a building, not dominate it. High pole signs or roof signs or overly large projecting signs should be minimized. (c)Signs should be designed to present basic information in a simple manner. Over-crowded copying and lettering and complicated structures should be avoided. (d)Identification of properties or structures - businesses and activities require adequate on-site identification except to the extent where unnecessary visual clutter is created. (e)Signs in the park zoned areas AP and A Metropolitan Recreational: Commercial activity is contrary to the purpose and intent of park zones and signs which are inconsistent with the character of the park should be prohibited. Off premise general advertising signs are prohibited in the river valley below the top of the bank and on vistas and approaches to the river valley. (f)Signs in residential areas - signs should not be permitted to introduce a commercial aura into residential zones as to detract from the character, integrity and enjoyment of these areas. (g)Billboards and other third party or non-local signs shall continue to be excluded from residential zones. (h)Signs on commercial sites such as service stations and neighbourhood shopping centres which are allowed in close proximity to residential zones should be very strictly regulated to protect the amenities of these residential zones. (i)Signs in commercial strip areas should be regulated so as to avoid undue interference by reason of size and excessive illumination thereby affecting the amenities enjoyed by homeowners in adjoining residential zones. (j)Safety Factor - Signs should be designed, engineered, situated and maintained in a manner which is safe and without hazard to the general public. (k)Special regulated zones should be created for defined major transportation corridors and approach roads with specific regulations designed to improve the appearances of these routes. (1) Civic Centre - Buildings of high civic and/or cultural interest such as City Hall, Court House, Art Gallery and Library are concentrated here and represent a large public investment. Signs on such buildings must be of a very high standard. Signs on private buildings, which also represent a large investment in the Civic Centre should be of an equally high standard.
B.L. 4445
- 3 -
( m ) Areas or structures of special public interest - special emphasis should be given to the encouragement of a high standard of signs in areas of particular significance from an architectural, historical or special public interest point of view. (n) Signs on Municipal Land Including Rights-of-Way - A policy should be developed on the leasing or use of City-owned sites, rights-of-way and air rights for the erection of private signs. (0) Street Furniture - A policy on the use of street furniture elements for advertising purposes as incidental signs should be developed.
READ a first time this
c2 ?) day of
A.D. 1975;
READ a second time this
.. ..3g/ day of
A.D. 1975;
READ a third time and duly passed this
3 day of
(0 0
62.4tr4-it
A.D. 1975. E CITY F EDMO ON
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• • • • • • •
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GENERAL PLAN • •
G3M12D
EDMONTON
TTIQ
•
CITY OF EDMONTON ALBERTA
C.ky
e-
MARCH, 1972
•
OFFICE CONSOLIDATION
• • • • • • •
City Council MAYOR:
Dr. Ivor G. Dent
ALDERMEN:
James W. Bateman Neil S. Crawford Mrs. Una M. Evans Mr. J. J. Kiniski Edmund H. Leger Mrs. K. M. McCallum K. G. Newman Nugent Cec Purves B. C. Tanner David C. Ward Dr. M. Weinlos Dr. P. Bargen
City Commissioners:
T. E. Adams S. J. Hampton G. S. Hughes Edmonton Municipal Planning Commission G. Hodge
City Engineer, Chairman
S. C. Rodgers
Superintendent of Planning, Secretary
G. H. Hughes
City Commissioner
D. A. Cull
Superintendent, Property and Building Managemeni
J. Janzen
Superintendent, Edmonton Parks and Recreation
A.F. Macdonald
City Solicitor
C.Z. Monaghan .. General Manager, Edmonton Water and Sanitation Superintendent, Social Service Department D.K. Wass
6
Note:
—
The City of Edmonton General Plan was originally published in August, 1967. This Consolidation includes amendments to May, 1971. These amendments are only those reflecting policy changes and important changes in statistics; the information for the years 1961 to 1965 upon which the Plan is based remains unchanged. All persons making use of this office consolidation are reminded that it has no legal sanction; that the amendments have been embodied only for the convenience of reference and that the General Plan and Appendices thereto should be consillted for all purposes of interpretation and application.
ii
• • • • • • • • • • •
Mayor's Statement We are proud of our City, particularly because of
The General Plan is not a static document, it must
its dynamic growth and vigour but we are also aware of
be adjusted to take into account technological advances
many of the problems associated with Edmonton's rapid
and improved methods for identifying trends and
evolution from a prairie town to a major metropolitan
resolving urban problems and provision is made for
centre for a vast region. In terms of growth and size,
regular review of the Plan accordingly. You are urged to
Edmonton's prospects are unlimited, but the quality of
give the most careful consideration to this Plan, not
our City in the years ahead will depend to a significant
only as it may affect your own residence or place of
degree upon the decisions made and the actions taken
business, but also toward the City as a whole. The
today. The proposals and policies contained in this
views expressed and comments made by our citizens and
document are intended to identify, protect and enhance
Plan adjusted where this is deemed beneficial to the
represented groups will be given proper study and the
those characteristics which give us cause for pride.
Plan. Through this procedure it is earnestly hoped that
Blighted areas, traffic congestion points and other ills of
the Plan will become identified with the desires and
major urban areas are also identified and measures
hopes of Edmontonians and will become a powerful
recommended to correct them.
instrument in properly guiding our City into the future.
Mayor, The City of Edmonton
Acknowledgement 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.
III
• • • 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
1111
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 — History, Geography, Region and Conservation. Chapter I I — Effect of Resources Development on Growth of Metropolitan Edmonton. Chapter I fl — Growth and Population. Chapter IV — Residential Development. • Chapter V — Parks and Recreation. Chapter VI — Public and Quasi-Public Uses. Chapter VII — Industrial Development. Chapter VIII — Commercial Development. Chapter IX — Generalized Land Use Plan, 2 vols. Chapter X — Downtown Edmonton. Chapter XI — Special Planning Studies. Chapter XIII — Utilities. Chapter XVI — Programming, Capital Budgeting and Financing. Chapter XIX — Edmonton Metropolitan Region and District Plan.
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
•
411
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 prepared to enable the adoption of the entire General Plan document with any amendments to be contained in adopted appendices. 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.
41111 1111
• • • Contents Preface •
The General Plan Process
vii
The General Plan Bylaw
viii
Superintendent's Statement I
iv
ix
History*
II Edmonton Region, District and Metropolitan Area
2.1
•
•
III Population and Employment
3.1
IV Urban Growth and Land Use
4.1
V Residential Development
5.1
VI Commercial Development
6.1
VII
Industrial Development
VIII Parks and Recreation
7.1 8.1
41) IX Public and Semi-Public Uses X Central Area XI Urban Renewal
9.1 10.1 11.1
XI I Transportation **
xi II
Public Utilities
13.1
xiV
Programming
14.1
XV Financing and Capital Programming XVI Urban Design
xvii
Implementation * The History Chapter has been omitted from this Office Consolidation. Held in abeyance pending further study.
•
15.1 16.1 17.1
List of Drawings * Page Ill
IV
POPULATION AND EMPLOYMENT 1 Population Pyramids
3.3
2 City Population 1881 - 2001
3.5
3 Urban Development 1902 - 1981
3.6
4 Population Distribution 1981
3.7
URBAN GROWTH AND LAND USE in end pocket
1 1968 Land Use Map 2 Urban Growth Sectors
V
4.3
3 1981 Land Use Structure Plan I
in end pocket
4 1981 Land Use Structure Plan II
in end pocket
RESIDENTIAL DEVELOPMENT 5.3
1 Residential Density by Area VI
VII
COMMERCIAL DEVELOPMENT 1 Existing and Anticipated Commercial Development
6.3
2 Principles for Improving a Strip Commercial Area
6.7
INDUSTRIAL DEVELOPMENT 1
VIII
X
7.3
Industrial Districts
PARKS AND RECREATION 1 Parks and Recreation Plan
8.3
2 River Valley Parks System
8.7
CENTRAL AREA 1 Proposed Downtown Pedestrian Circulation System
XIV
10.3
PROGRAMMING 14.2
1 Staging Plan
List of Diagrams * Ill
V
VII
X
XIII
POPULATION AND EMPLOYMENT 1 Population Projections
3.4
2 Percentage Employment by Industry in Edmonton and Eleven Major Canadian Cities
3.8
RESIDENTIAL DEVELOPMENT 1 City Residential Development 1951 - 1981
5.1
2 Desired Residential Density Pattern
5.5
INDUSTRIAL DEVELOPMENT 1 Comparative Manufacturing Employment and Distribution 1961
7.2
2 Metropolitan Employment, 1961 - 1981
7.6
CENTRAL AREA 1 The Central Area
10.1
2 Central Area Functional Uses
10.8
PUBLIC UTILITIES 13.1
1 Utility Requirements for The City of Edmonton IV
FINANCING AND CAPITAL PROGRAMMING 1 Proposed Capital Improvement Program for The City of Edmonton
15.5
* A number of drawings and diagrams which are not essential to the text have been omitted from this Consolidation and the listing renumbered accordingly.
vi
THE GENERAL PLAN PROCESS The City of Edmonton General Plan is intended to provide a set of objectives and principles upon which decisions concerning the development and redevelopment of Edmonton may be based and, as such, has an emphasis on "how" as opposed to "where". It is a policy document which sets forth criteria which should be used as a guide in making decisions relating to urban growth and renewal. It is not appropriate for a Plan spanning a period of over ten years and beyond to include concrete proposals for development at specified dates in the future; these decisions must be based
S
on the conditions that prevail at the time a project is to be undertaken and on a long-term commitment to goals. Specific proposals which are contained in the document related to policy decisions already established by City Council or to where comprehensive studies have been carried out in a particular area. However, the Plan should be viewed as a guide to growth rather than as an unalterable commitment to certain projects.
Interpreted in such a manner the General Plan will provide a much more beneficial and lasting aid to City Council in the formulation of policy. For example, the Plan establishes a basis upon which urban expansion in any particular direction may be measured and, once an area is designated for growth, it further provides a more detailed basis upon which growth in that particular direction may be guided. This is applicable to both old area and new area growth and, as such, includes all facets of urban development.
The proper utilization of the General Plan in the sense described above requires that it be constantly reviewed and amended when and where necessary. It is not a static document but is one which should portray current City •
policy in the areas with which it is concerned and thus must be continuously examined as an integral part of the decision making process. It is hoped that, as the General Plan evolves over the years, future amendments necessitated by more in-depth studies and resultant policy changes will increasingly reflect this policy guideline aspect of the Plan with less and less emphasis being placed on its concrete proposal aspects which are better contained in district plans, outline plans and other such studies.
• • • • •
v„
BYLAW NO. 3279 THE GENERAL PLAN BYLAW
WHEREAS Section 12(a) of The Town and Rural Planning Act, being Chapter 169 of The Revised Statutes of Alberta, 1942, as re-enacted by Chapter 71 of the 1950 Statutes and in force on April 5th, 1960, provided that any local or rural authority might, by resolution, provide for the preparation of a plan for development to be known as the General Plan; and
WHEREAS, at its meeting on May 22nd, 1950, City Council authorized the preparation of the General Plan for The City of Edmonton, and
WHEREAS the General Plan has been prepared; and
WHEREAS the present successor to the above legislation is The Planning Act, being Chapter 43 of the Statutes of Alberta, 1963, as amended; and
WHEREAS Section 97(1) of the present statute, as re-enacted by Chapter 60 of the 1967 statutes, provides that a council may adopt a general plan by bylaw in accordance with Sections 129 to 136 of the statute,
NOW THEREFORE, upon the recommendation of the Municipal Planning Commission and after due compliance with the relevant provisions of Sections 129 to 136 of The Planning Act, as amended, the Municipal Council of The City of Edmonton enacts as follows: 1.
This Bylaw shall be known as THE GENERAL PLAN BYLAW.
2.
The General Plan for The City of Edmonton together with Appendices Nos. 1 and 2 thereto, filed with the City Clerk, is hereby adopted. To assist the Council in completely reviewing the General Plan once every five years after its adoption, as
3.
required by Section 98 of The Planning Act, the Director of Planning shall report to the Municipal Planning Commission which, after considering such report, shall submit the same, together with its recommendations, if any, for the amendment of the General Plan, to the Council.
READ a first time this 6 day of January, A.D. 1969.
READ a second time this 18 day of May, A.D. 1971.
READ a third time and duly passed this 18 day of May, A.D. 1971.
THE CITY OF EDMONTON (SIGNED)
"Ivor Dent" MAYOR.
(SIGNED)
"H. Moon" ACTING CITY CLERK.
Note:
—
This Bylaw comes into force when approved by the Council and does not require the approval of the Provincial Planning Board.
viii
• • • •• •
•• •• •
• • • • • • • • • •
Superintendent'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 — to 1981. Edmonton's General Plan, as a statement if 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, Superintendent of Planning.
ix
Hierarchy of Urban Planning Goals
An
OVERALL GOAL: To provide the physical environment which would give the
/OVERALL\ ( GOAL
people of the community the opportunity to obtain "The Good Life".
THE GOOD LIFE
BASIC GOALS BASIC GOALS: These goals must be rational and internally consistent, capable of being attained, and operational (i.e., con be contradicted). People may "mix" these differently to achieve The Good Life.
OBJECTIVES ‘ \ \ %.,.. c,) / i I IT, I \ -7 \ I /,,./ I / it& / / i I OBJECTIVES: 0.- / / i I The achievement of the basic goals de1 -0 \ ce- \ a. \ I / (17 / --i I .-,-c-- I pends on how effectively the location and 1 4- \ 4 \ \-c-4 \ 01<I _, / 1 u" I --,1 \ (2,.. \ 0 x i ce I / design of structures, uses and facilities / are planned and controlled.
/ 41 1
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///6i°1 12<LI'5\ -6\72-\\-9 -'.. / ce/ui w-/ z 44.,.. / ....., , PRINCIPLES 1
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PRINCIPLES:
\ -,71 \
Concrete statements of
t
principle which, if implemented, assist in the attainment of objectives.
P,, `9
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4. i' / a 1 ;',1 1 ,4 ii.: I z.:1z -,e 1 ., §. I c?' I Igg se /,'I / .s /.. 1,7; 41 - / ,e '''' / / t: -*IF I :
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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.
X
Chapter II
EDMONTON REGION, DISTRICT AND METROPOLITAN AREA THE REGION
Almost 340,000 people or 35.5 percent were resident in Metropolitan Edmonton in 1961, and 618,000 people
Edmonton is the dominant centre of a vast
or 64.6 percent within a 100 mile radius of this City.
region extending south to the Red Deer River, north to
The remainder of the region is sparsely populated with
the Arctic Islands, east to Lake Athabasca and west to
the exception of the Peace River area which in 1961
the Western Cordillera. This region is a spatial entity
had a population of about 60,000 people.
overlapping municipal, provincial and territorial boundaries.
Regional Resources The Edmonton region is essentially that area in
Population growth in the region is, in part,
which The City of Edmonton plays a dominant role as a
dependent on the extent of new resource development.
supplier of qoods_as_a centre of services, as an
The exact nature of the future population pattern,
administrative centre, as a base for operations and as a
therefore, cannot be established as vast areas of the
financial and government centre. The demand for these
region have yet to be explored to determine its full
services from outlying communities influences the pro-
potential as a supplier of minerals and other products.
vision and location of transportation and communication facilities and services. At the same time, the size of the
The Edmonton region contains one of the richest
region is dependent on the quality of the existing
agricultural areas in Western Canada producing excellent
communications network and the extent to which this
wheat, forage crops and coarse grains. Alberta has
network is utilized and improved.
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
Natural features, such as climate, physiography, soils, drainage, mineral resources, flora and fauna re-
of Edmonton in the Peace River and Great Slave Lake
inforce the general homogeneity of the region and the
areas and the Mackenzie River Valley. The raising of beef cattle and other stock is an important agricultural
determination of its limits.
activity, particularly at the region's core, and serves Edmonton's lar est indu strial
Development within this region affects Edmonton
a...
profoundly by generally increasing business activity,
packing industry. Improved transportation in the region
tourism and population and consequently creating de-
and the maintenance of attractive legislation for home-
mands for new offices, homes, warehouses, transport
steaders and farmers will continue to assist in the
facilities and industrial, government and cultural
opening up of new areas for agricultural use.
buildings. Regional development can also be influenced by the many activities and services which exist in
The forests which lie north and west of Edmonton
Edmonton. Edmonton and its region are, therefore,
consist largely of spruce, pine, poplar and birch.
mutually interdependent and equally important to one
Although these forests presently support lumber, ply-
another.
wood and pulpwood operations, the type, size and rate of maturation of local trees suggest a greater expansion
The region, with a population of 957,600 people
of pulpwood operations. Good forest management is
in 1961, covers an area of some 1,000,000 square miles.
necessary to ensure a continued supply of treed areas
2.1
50 billion tons or about one half of Canada's total. The
and should be co-ordinated with management of water
historic decline of coal production as a result of
resources, forest recreation and wildlife.
competition from oil and natural gas has been slowed Recreation and wildlife resoUrces are important to
somewhat by the production of electricity. Other uses
the Edmonton region and should become more so as
for coal are presently being investigated by the Research
population, leisure time and incomes increase. Through
Council of Alberta.
population expansion the supply of wildlife and natural areas for recreational use have been drastically reduced
The mining of other mineral resources of the
in many parts of the world. The present abundance of these types of areas should not preclude the early
region - such as lead, zinc, silver, gold, copper and nickel deposits - has been underway for some time. The
provision of a strong conservation program for wildlife
development of an immense high grade iron ore deposit
and recreational resources throughout the Edmonton
which straddles the Yukon and Northwest Territories' boundary has yet to proceed. However, a pilot plant to
region.
test the commercial feasibility of producing metallic The existence of mineral resources is of primary
iron briquettes from relatively low grade iron ore
importance to the future development of the region.
deposits in the Peace River area is presently in operation
Mineral resources such as coal, natural gas, crude oil,
on the outskirts of the City.
gypsum, base metals, gold, glass sand, copper, soluble salts, sulphur, limestone, iron ore and common salt are The Regional Transportation Network
abundant.
The key to exploration and development of Without doubt, the discovery, almost 20 years
regional resources is an adequate transportation net-
ago, of a major oilfield just south of Edmonton has been
work of roads, railroads, airport facilities, pipelines and,
a major factor in the City's growth. In 1963, for
in some cases, port facilities.
example, the value of production of crude oil and natural gas and related products amounted to over 90
Roads presently nearing completion include a road
percent of the $637,000,000 worth of minerals produced
from Edmonton to Fort McMurray, the Slave Lake
in Alberta. The Edmonton region has the following
cutoff, Hines Creek to British Columbia boundary,
major oilfields; Lesser Slave, Leduc-Woodbend, Pembina,
Yellowhead Route to the West Coast and Watson Lake
Swan Hills, Rainbow Lake, Judy Creek, Wizard Lake,
to Carmacks. The Federal Government will soon be
Bonnie Glen; and the following major gas fields;
implementing its 10-20 year roadway program for the
Carson Creek, Viking-Kinsella and Westrose South.
Northwest Territories and the Yukon. Through the
Recoverable reserves of Provincial oil and gas amount to
co-operative efforts of the Province of Alberta and the
over 4 billion barrels and 34 trillion cubic feet
Canadian National Railways, a "resources", rail line
respectively. In addition, it is estimated that the oil
from Hinton north through a region with known coal
deposits in the Athabasca Tar Sands in north-eastern
and timber resources is being developed.
Alberta might be as high as 700 billion barrels of oil of which 300 billion barrels of upgraded synthetic crude
Construction of at least 10 new airports in
oil could be produced. Known world reserves, excluding
Northern Alberta was completed in 1965 - most notably
the tar sands, are estimated to be 200 billion barrels. A
at Fort Chipewyan, Slave Lake, Elk Creek, Mayburne,
plant, employing one of several techniques tested to
Manning and Keg River. Within the context of a five year
process the tar sands is presently under construction near
airport development program, the Province of Alberta
Fort McMurray to recover oil from the sands.
will continue to construct new airports and expand existing terminals therebY reducing the travelling time
The recovery of oil and natural gas from these -
between points within this vast region. The Federal
fields has boosted the local economy as .evidenced by
Government, responsible for airport facilities in the
the development of oil refineries, petrochemical plants,
Northwest Territories and the Yukon, has also completed
pipe mills and related administrative, scientific and
major improvement programs at several locations in the
supply centres in the Metropolitan Area. Many promising
region and a ten year airport development program has
areas in the region have yet to be subject to seismic tests
been established. Expansion of other communication
and drilling programs.
and transport facilities, including microwave systems, pipelines and ports is proceeding at a rapid pace. Competition from other cities in Western Canada for
Mineable reserves of coal in Alberta total almost
2.2
• • • • • • • • • • • • • • • • • • • • • •
which Edmonton will benefit from the growth in the
6. To actively promote the availability of local business to the region and encourage the
region is dependent on how effectively local firms will be
development of new services which directly
able to satisfy regional needs.
benefit the region.
providing services to the region is keen and the extent to
7. To encourage industrialization that utilizes
Objectives for the City in its Relationship to the Region
the region's bulky raw materials to produce
1. To comprehend the nature of the region and
low volume, high value goods, for example,
its relationship to the City as the regional
fine paper and other stationery material
centre.
from kraft paper presently exported from Hinton to world markets.
2. To maintain an awareness of activities within the region and to play an active role in its
8. To encourage the establishment and ex-
development.
pansion of industries which contribute to a strong local economic base, for example,
3. To maintain Edmonton as the dominant ete"centre of the region.
an iron and steel complex. The Edmonton region, as previously defined,
4. To encourage the conservation of the
is that area in which The City of Edmonton plays a
region's resources as well as their wise and
major role as a supplier of goods and services. Within
careful development.
this broad economic region a much smaller "urban centered" region exists which is delineated on the basis
5. To encourage exploration, mapping and the
of the relationship established by the City's retail
dissemination of information on the resource
rather that its wholesale trade. Much greater personal
and development potential of the region.
contact is evident between the urban area and the surrounding rural municipalities, towns and villages.
Principles Upon Which the Objectives may be Achieved
M-any problems are common to all areas within this region, for example, water supply, and, in addition
1. To continue to actively sponsor and
the activity in one area could affect activity in another_,
participate in regional development con-
for instance, air pollution. In planning for an efficient
ferences, bringing together local, Provincial
use of regional resources, problems that arise from a
and Federal agencies and private industry
fragmented local government structure need to be
concerned with developing the Edmonton
minimized.
region. REGIONAL PLANNING
2. To encourage the extension and improvement of the transportation and com-
The Edmonton District (now Regional) Planning
munications network to further develop and
Commission was established in 1950. The Commission
settle the rggion.
acted in an advisory capacity until 1957 when major amendments to the Town and Rural Planning Act were
3. To encourage the improvement of the inter-
legislated giving the Regional Planning Commissions
regional transportation network to reduce the cost of transporting regional resources
authority to formulate and implement a district plan.
to major domestic and foreign markets.
municipalities and three Provincial Government
4. To safeguard the availability of low cost
At the committee or technical level, representatives of
The Commission consists of representives of member Departments - Agriculture, Education and Highways.
electric power, natural gas and coal and an
other provincial departments, and local government are
ample water supply to ensure continued
invited to participate. The Commission maintains its own staff and operates as outlined under Part 1,
regional resource and industrial development.
Regional Planning Commissions, and Part III, Regional Planning, of The Planning Act.
5. To assist in the search for markets for regional resources.
At present the Edmonton Regional Planning
2.3
Commission covers 5,000 square miles, extending some
Principles of Regional Planning
60 miles to the west, 24 miles to the east, 30 miles to 1. To provide a preliminary regional plan, and
the south and 36 miles to the north of Edmonton.
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.
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
2. To define the uses of land and buildings
with any preliminary plan or any regional plan
permitted within each zone.
that is being prepared or has been adopted under this Part.
3. To provide within this plan recommendations relating to staging and sequence of development.
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
4. To make proposals relating to road services,
effective control. Major changes of The Provincial
public buildings, schools, parks and their
Planning Act in 1957 made possible the preparation
location and the reservation of sites.
and adoption of The Preliminary District Plan, 5. To undertake studies and make appropriate
Metropolitan Part in 1959. This plan, its regulations and revisions are the basis for effective control of
recommendations to ensure the district an
development in the Metropolitan Area of Edmonton.
adequate supply of unpolluted water and an atmosphere void of undesirable smoke, noxious fumes, gases and particulate matter.
Objectives of Regional Planning To devise a strategy of growth regarding the
6. Although not primarily concerned with
direction, sequence and extent of develop-
political boundaries and the form of local
ment within and around the major urban.
government the Commission should be con-
centre of the region without the impediment
cerned that effective control continues to be
of political boundaries.
exercised over metropolitan and regional aspects of planning.
2. To regulate land use within the region to achieve
orderliness
in
the
develop-
7. Since environmental pollution is a problem
ment pattern.
which respects neither geographic nor legal boundaries it is a problem of regional
3. To provide a guide for the optimum use and development of the region's resources.
significance requiring the close co-operation of local, regional and provincial agencies. The program for the control of pollution
4. To provide the best physical setting for
in the Edmonton region by the various
community life in the region by developing
authorities should be complementary and
the possibilities inherent in the unique land-
mutually supporting and should recognize
scape, traditions and culture, as well as
the following principles:
location and climate. (a)
5. To place regional growth in a broader framework, facilitating inter-area planning
The public should come to recognize individual rights to quality of living,
for broader economic or water-shed regions
expressed by the absence of pollution,
co-ordinate regional planning
as it has come to recognize rights to
objectives with those of the Province and
education, to economic advance and to
the Nation.
public recreation.
and
to
2.4
(b)
The responsibility of each polluter for
and transit system for the defined
all forms of damage caused by his
Metropolitan Area.
pollution
should
be
effectively 4. To distribute residential areas in a manner
recognized and generally accepted.
that (c)
All concerned should recognize the
will
minimize time,
cost
and
inconvenience of the journey to work.
quality of human life and the presence and growth of other living things as
5. To develop land within the Metropolitan
the major values currently damaged by
Area in accordance with priorities estab-
pollution.
lished on the basis of need and cost of servicing.
METROPOLITAN PLANNING 6. To prevent the disorderly extension of urban
The Edmonton Regional Planning Commission
uses along major arteries beyond the City's
has completed preliminary plans for a substantial portion
boundary.
of its region. The Metropolitan Part of the Preliminary Regional Plan defines permitted land use classes for The
7. To maintain, by limited access zoning, the
City of Edmonton, St. Albert and portions of the
safety and capacity of the highway
Counties of Leduc, Strathcona and Stony Plain. This
approaches.
area consists of nearly continuous built-up urban development whose parts are highly interdependent.
8. To share in proper measure the cost of
The satellite communities function primarily as
providing services which benefit two or
dormitory suburbs, depending on Edmonton to provide
more municipalities.
many cultural, institutional, educational, commercial, industrial and recreational facilities.
Principles of Metropolitan Planning The Edmonton Metropolitan Area differs quite
The land use zones defined below effectively
markedly from Metropolitan Winnipeg or Toronto in
summarize the manner in which metropolitan planning
that a very high proportion (eighty-three percent) of the
objectives are attained.
Edmonton metropolitan population resides within the boundaries of the major city.
1. General Urban
- to provide economically
The need for joint development and
serviceable land for the general urban needs of
participation in the planning of land use, roads, utilities
Metropolitan Edmonton. The General Urban
and services is, in part, met through the Edmonton
Zone is intended to provide sufficient land for
Regional Planning Commission. Also, municipal general
a minimum period of five years at the prevailing
plans may concern themselves with uses of land outside
rate of population growth.
the boundaries of the municipality preparing the plan. The City of Edmonton can, therefore, effectively
2. Agricultural
participate within the present framework of metropolitan
- General Urban Reserve - to
reserve those agricultural lands on the periphery
planning.
of metropolitan development which, by their relationship to existing land uses, to main road
Objectives of Metropolitan Planning
systems and to the established utility systems will, in time, become suitable f.or general urban
1. To delineate the metropolitan boundary most appropriate for the effective and
use; and to prevent premature subdivision and
economic provision of utilities and services.
development of land that is prospectively suitable for general urban use. The General Urban
2. To maintain within the metropolitan limits
and Agricultural - General Urban Reserve Zones
an adequate and balanced supply of land for
are intended to provide sufficient land for a
each of the major land uses - residential,
minimum of fifteen years at the estimated rate
industrial, commercial and recreational.
of urban growth. A change from Agricultural General Urban Reserve to General Urban would
3. To plan and develop a unified major road
be considered as an amendment to the Regional
2.5
Plan and subject to the required amendment
the municipality, in General Urban, Small-
procedure.
holding and Low Density Agricultural Zones.
3. General Industrial dustrial
land
- to provide suitable in-
to
meet
Airports - uses permitted are those consistent
the anticipated
with the use of the area as an airport and are
manufacturing, industrial, warehouse and
subject to the detailed zoning requirements of
storage land needs of Metropolitan Edmonton
the municipality.
for a minimum period of fifteen years based on Highway commercial development areas, re-
the estimated rates of land occupancy.
stricted to uses essential to the travelling 4. Metropolitan Recreation - to enable natural
public, are grouped in specified locations with
parkland and wooded areas along rivers, streams
access by a service road having one entrance
and ravines to be preserved for active and
and exit. These locations are determined in relation to highway safety and efficiency.
passive recreation and scenic purposes; to encourage the maintenance of continuous open
8. Light and Heavy Industrial Zones - (relevant to
spaces along major drainage channels, and to
industrial development in district towns.)
provide permanent buffers between incompatible land uses. 5. Country Residences - to provide sites for
9. General Agricultural Zone - areas in the district
groups of permanent country dwellings of
that are more remote from urban development
good construction at scenic locations within
than those designated as Low Density
convenient commuting distances of urban
Agricultural Area are zoned as General
Edmonton, in a manner which will not result in
Agricultural. This zone is intended to control
urban concentrations and which will be beyond
the subdivision of good agricultural land. In
the areas of urban expansion.
certain cases, in accordance with established county or municipal policy, subdivision of less than 20 acres can be approved without requiring
6. Low Density Agricultural Uses - to conserve the
zoning changes by the Commission.
natural resources of the area for purposes of primary agricultural production. To prevent the wastage of agricultural land on the metropolitan
10. Smallholding Zone - to provide land for groups
fringe by premature or scattered subdivision or
of parcels suitable for market gardening and similar small scale agricultural pursuits. In the
development.
Smallholding Zone, site areas must be no smaller than three acres and no larger than
7. Special Uses -
twenty acres.
Trailer Courts are permitted, upon approval by
2.6
• • • • • •
• •• •• •• • • •• •• •
• •
Chapter III
POPULATION AND EMPLOYMENT
POPULATION
inflows of people during the first decade of this century. The expectations of an expanded railway network to the
In the 1965 Fall Census, Edmonton had a
north opened large areas for new settlers, particularly
population of 371,265 for an area of 85.6 square miles
accelerating the growth of population in 1911 and 1912.
within the City boundary. In common with other
By 1914, the City population had increased to 72,000
urban centres on this continent, Edmonton can anticipate
from 3,000 in 1900. The growth rate slowed considerably
a considerable population increase in the years ahead.
during the War period as immigration and birth rates
Based on patterns of natural increase and net migration
declined. In fact, by 1917, the number of residents in
it is estimated that by 1981 the City's population should reach 620,000. The median estimate for the Metropolitan
rate during the next 25 years averaged a relatively low
Area is 695,000 people by 1981.
2.7 percent per year, reaching 97,000 in 1942. The
Edmonton had declined to 50,000 people. The growth
discovery of oil in Leduc in 1947 and subsequent The effects of the size, age group distribution
discoveries of oil and natural gas in other areas within
and other characteristics of this enlarged population on
the region, combined with increased mining activity and
the form of the City are important basic elements of the
the clearing of additional land for agricultural purposes,
General Plan. Reliable projections of the future popu-
provided stable employment opportunities and thus
lation are necessary if planning for new residential,
stimulated the rapid population increase of the past two
commercial, industrial and recreational areas is to be
decades. In the period 1942 to 1961 the growth rate has
effective. Similarly, sound decisions on extensions of
averaged a remarkably high 5.8 percent per year.
roadways, transit facilities, schools, utilities, police stations, fire halls, libraries, playgrounds and other
Coupled with increased recovery of regional
public facilities must be based upon population pro-
resources there has been a marked decline in the â&#x20AC;˘
jections.
rural farm population. In 1901 three-quarters of Alberta's
History of Local Population Growth
communities but, by 1941 this had dropped to less
population resided on farms and in unincorporated rural than two-thirds. Whereas the total rural population has Since the formation of Edmonton as a major settlement at the end of the 19th Century, the popu-
declined only slightly, the ratio to the total population has decreased substantially as the following table
lation growth pattern has tended to coincide propor-
illustrates:
tionately with periods of economic boom and periods of relative recession.
POPULATION DISTRIBUTION IN ALBERTA
The arrival of the Canadian Pacific Railway in
Year
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
3.1
Rural Percentage Urban
1951
489,003
52
450,498
1956
487,292
43
1961
480,368
36
Percentage
Total
48
939,501
635,824
57
1,123,168
851,576
64
1,331,944
• •
The rural farm population, separate from rural
has xapered off slightly since 1956. This is largely due to
non-farm (those resident in isolated communities of less
the arrival of a stable rather than boom economy and
than 1,000 population) has declined during the 1941 to
future ebb and flow of migrant population to Edmonton
1961 period from 340,000 to 290,000. From 1951 to
will be contingent on the economic position of the
1961 the Province of Alberta had the highest growth rate
Edmonton area as compared to the remainder of Canada
of any province in Canada with an increase in population
and the world. Certain years may show Edmonton
of 42 percent and the highest rate of urban increase
receiving a large portion of its in-migration from the
(89 percent) in Canada. Edmonton's share of the
rest of Canada, whereas other years may show a large
population increase in the Province grew steadily between 1951 and 1961 with a Metropolitan Area growth
portion of the in-migration to be directly from foreign countries.
rate of 91 percent (the second highest in Canada). The
Marriage Rates
rate of increase after 1961, although not as high as in the previous decade, has been a healthy 3.4 percent per year.
The relatively small number of males and females in the 15 to 24 year age group has been a significant
POPULATION CHARACTERISTICS
factor in the recent decline of marriages from a rate of 17.7 per 1,000 population in 1951 to 13.2 in 1956 to
Natural Increase
the current rate of 8.7. At the same time, Albertans are
Rates of natural increase (births exceeding deaths
generally marrying at an earlier age. In 1940, the average
in the resident population) have been between 20 and
ages of brides and grooms at marriage were 24 and 28
30 per one thousand population in all census years
years respectively. In 1963 the average age at marriage
since 1916, with the exception of the years 1931, 1936
had declined to 19 years for brides and 21 years for
and 1941. In the past forty years, the birth rate has
grooms. The portion of the population (aged 15 or
varied from a low of 16.7 per 1,000 population in 1936
more) that is married has also been increasing. In
to 35 per 1,000 population in 1956. The birth rate has
Alberta at present, two-thirds of the males over 15
since been steadily declining, reaching a rate of 26 per
years and seven-tenths of the females are married. The
1,000 population in 1964. The primary cause of this
average family size in Edmonton has moved upward
decline is the relatively small ratio of women in the 15
from 3.4 at the time of the 1951 census to 3.7 in 1961.
to 24 years age group.
Age Distribution
The death rate has been steadily decreasing from a rate of approximately 10 per 1,000 population prior to
The population pyramids show the age distribution
1940 to 6.3 in 1956 and 5.7 in 1964. The rate of
by five year groupings for the City for the years 1921,
natural increase (births less deaths) has, therefore,
1941, 1951 and 1961. The comparative low rate of
declined in the past decade from 29 per 1,000 population
births during the depression years in the 1930's and the
in mid 1950's to 20 in 1964. The number actually
Second World War is now recognized by a constriction
being added to the City's population through natural
of the pyramid in the 15 to 24 year age groups.
increase has risen from 1,000 per year in 1941 to
Similarly, the rising birth rate since 1945 (the peak
4,000 in 1951 and 7,200 in 1964. Edmonton generally
being reached in 1956) is indicated by the
has had a higher birth rate, a lower death rate and thus,
proportionately large number of people presently in the
a higher rate of natural increase than Alberta or Canada.
0 to 14 year age group. The portion of the population in the 65 years and over group rose from 2.3 percent in
Total Population Increase
1921 to 7.0 percent in 1951, declining slightly to 6.4 percent in 1961.
About one-half of Edmonton's population increase in the period 1951 to 1961 resulted from positive net
Ethnic Background
migration (the difference between the numbers moving into and out of an area). The net flow of migrants has
In 1961, the ethnic background of the Edmonton
varied from 10,240 in 1956 to 1,613 in 1960, and thus
Metropolitan Area population was predominantly English,
added significantly to the total increase in Edmonton.
Irish, Scottish and Welsh (45.8 percent) with lesser
Net migration was low during the period before and
amounts of people of German (12.3 percent), Ukrainian
after the depression in the 1930's. After World War II,
(11.3 percent), French (6.7 percent), Scandinavian
and in the period following the discovery of oil around
(5.3 percent), Dutch (4.1 percent), Polish (3.8 percent)
Edmonton in 1947, the net increase was very high and
and others (10.7 percent).
3.2
•• • • • •• • • •
•• ••
• •
•• ••
AGE GROUPS
AGE GROUPS
80 & Over
80 8. Over
Ii A 111
75. 79 70. 74
75.79
65-69
LI
60 .64
60 - 64
111 -5A Big Illig f--.11111 EMI •41%1111111 11111111
55 • 59 50. 54 45. 49 40 -
MEM BIM=
70. 74
65 . 69
44
minus MINIM 1111111115 Xing :WI III RINE
25- 39 30. 34 25 .29 20 - 24 5.9
5. 9 - 4
20
15
10
MALE
50. 54 45-
30-34
20 • 24 15.19 10. 14 5.
9
0. 4
5
MIMMEMMA-Mil . MMEMINE MANIMM
25-29
. •. ' . •
0
BERWOMMUEN 1111MMINEMENS
35-39.
:• ME INES
5
NIZOM
49
40-44
8I,111111111 a-2-1511111 -=-1111111
.•. ' . ' . ' .
0. 14
insimamm =moms
55- 59
15
20 FEMALE
THOUSANDS OF PERSONS
MENIMEME.111111M SINEVIMMEMEMOMEEMEERMEI
40
35
30
10
20
25
5
0
5
15
10
20
25
THOUSANDS OF PERSONS
MALE
30
35
FEMALE
MEI 1961 - Including Jasper Ploce 8 Beverly
11111111 1921
1981 -
1941 1951
THE CITY OF EDMONTON
)961 HISTORY OE EDMONTON
AGE GROUPS AGE GROUPS 80 8. Over
80 & Over
75. 79
75. 79 70 74
65 - 69
65.69
ENE SUM MEM=
60 • 64 55 • 59 50 . 54
60 - 64 55. 59 50- 54 45. 49
45. 49
IMO N
40 - 44
40. 44
IMMO
35- 39
35- 39
••
•
30. 34
30 - 34
1121.11111 1611116.61M ME =moss
25 - 29 20. 24 5. 19
25 - 29
mgm.-„e vase EBEN
20 - 24 15 - 19 10 . 14
n 14 5. 9 .
INOR Immo mem
70. 74
.„6„ .., • ;N
5. 9
4
•
EERIERIA...
.
0- 4
50 40 MALE
30
20
10
')
10
20
THOUSANDS OF PERSONS 1961
30
50 40 FEMALE
125
150
100
75
50
25
0
25
THOUSANDS OF PERSONS
MALE
50
75
100
125
150
FEMALE
1961
DEIS Boundary
Cr......f.21 1981
1981 -
METROPOLITAN EDMONTON
PROVINCE OF ALBERTA
EDMONTON GENERAL PLAN
DWG.
POPULATION PYRAMIDS
1
POPULATION AND EMPLOYMENT
CHAPTER III
Place of Birth
MAG. 1. — POPULATION PROJECTIONS.
By place of birth, 57 percent of the local population was born in Alberta, 20 percent in other
100 80 60
provinces, 6.5 percent in the United Kingdom, 13.5 percent in other European countries, 2.5 percent in the
40 30
United States and 0.5 percent elsewhere.
---------
Predominant Religious 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.
PO PULATIO NIN M ILL IO NS
-------
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BER-C-P:=
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1
2 ■ras000■•■■711. =s21••■••••-
0.8 0.6 0.4 0.3
PRESENT POPULATION DISTRIBUTION
•■•6=111.1
•
_ RIM or
-NA-4
C
0.2
Drawing 3 illustrates the extent of the urban development for selected years since 1902. Currently
0. 1 0
N.
03
Os
0.
sixty-six percent of the population resides north of the
Cs1
North Saskatchewan River. However, in recent year's
YEAR
the rate of growth on the south side of the River has exceeded that of the north side. Based on the best estimates of birth, death and migration rates available, the City of Edmonton 1981
As would be expected, the outlying sectors of the
population should range from 590,000 to 650,000
City have experienced the most rapid population growth. In contrast, the population has declined in many of the
people. For statistical convenience, a median population
older portions of the City. Families with children
of 620,000 has been used throughout the Plan.
predominate in the areas built since 1947 whereas the group over 65 years of age comprises a much larger
The Edmonton Metropolitan Area as presently
proportion of the total population resident in areas of
delineated by the Dominion Bureau of Statistics is
older housing. Immigrants to this country and to this
expected to have a population of 695,000 by 1981. The
City have usually settled in the older districts of
area within the Edmonton Regional Planning Commission
Edmonton with a marked concentration immediately
boundaries is expected to have a population of 776,500.
northeast of the City centre. Average income is generally
Population projections beyond 1981 suggest that the
higher in the southwest sector of the City, approaching
Metropolitan Area will reach a population of one
$7,000 yearly in two census tracts. In contrast, average
million near the year 2000.
income for families resident in three census tracts northeast of the City Centre is less than $3,000 per year.
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 death rate,
POPULATION PROJECTIONS
natural increase would account for about 75 percent of
Any population projection requires analysis of
the population expansion to 1981. The most variable
objective as well as subjective factors. Birth rates, death
segment of the population forecast, the rate of net
rates and rates of family formation, for example, can
migration, is expected to range from 6,000 to 10,000 per
be based on accurate statistical trends capable of
year. However, as experience has shown, net migration
explanation. However, the rate of migration from the
levels do in fact fluctuate substantially from year to
farms and communities in the region, from other parts of
year. Ideally located to serve a vast region yet to be
Canada and from other nations cannot be forecasted as easily. Therefore, a periodic review of the assumptions
explored for its mineral wealth, Edmonton could experience a rate of growth far beyond the level presently
made as to the rate of natural increase and migration is
anticipated.
necessary.
3.4
1,000
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3 C•1
YEAR EDMONTON GENERAL PLAN
DWG.
CITY POPULATION 1881 - 2001
2
POPULATION AND EMPLOYMENT
CHAPTER III
• • • •
••
""--•""' ...... ..
• • • • •• • • • • •
''''''
• ...... ::::::::::::
:'::; ........
•
YEAR NM 1902
Ma 1924 1947 1965
1981
• EDMONTON GENERAL PLAN
URBAN DEVELOPMENT 1902 - 1981 POPULATION AND EMPLOYMENT
DWG.
•
3 we
CHAPTER
KEY Upper figure -1969 existing population Lower figure - 1981 projected population Hatched area - partially developed neighbourhoods in 1981r n/a - data not available /23,10 11,204 40 ;000
27,569 28,000
28,060 28,100
ri70.1 \ 711111 13,500
24,740 26,000
8,494
/
15,597 1 . .000
10,000
11.167 12,000
14,9(52 11,998 \16,000 12,200
17,761 21,000 18,866 21,000
/17,70 0
11,143 13,000
131 3,100_
19,107 20,200
16,715 17,000
13,761 13,800
12,279 12,300 16,383 18,000
22,170
22,500
16,2 92 18,600
12,027 22,000
13,6 0 0 / //
EDMONTON GENERAL PLAN
DWG.
POPULATION DISTRIBUTION 1981
4
POPULATION AND EMPLOYMENT
CHAPTER III
EMPLOYMENT
The most significant element of the changing age structure is the large increase of people under 29 years of
In 1961 the Edmonton metropolitan labour force
age relative to increase in other age groups. By 1981, the 70 and over age group is also expected to increase at
numbered 131,576 or 39 percent of the total
a rate faster than at present.
force in 1981 will total approximately 278,000 or 40
metropolitan population. It is estimated that the labour percent of the forecasted total Metropolitan Area population.
FUTURE POPULATION DISTRIBUTION The distribution of the 1981 population is as follows: Edmonton 620,000, Sherwood Park 25,500, St. Albert 35,000, rural zones within the Metropolitan
was 37 years for males and 34 years for females. This is
Area 14,500, Morinville 1,000, Fort Saskatchewan
36 years respectively. The nature or type of industrial
The average age of the local labour force in 1961 less than the National and Alberta averages of 39 and
10,000, Leduc 14,000, Devon 3,000, Spruce Grove
development in Edmonton and the region, and migration
1,000, Stony Plain 2,500, and the rural area within the
to the City (migrants are generally in the younger age
region 50,000 giving a total of 776,500 people.
groups) most likely account for this differential. Foreseen is a continued decrease in participation by males
The future additional population of Edmonton will
and females in the 15 to 24 year age group, males over
be housed in new residential areas in the west, southwest,
65 years of age and increased participation by females in
south, southeast, northeast and north sectors of the
the 40 to 65 age group.
City, as well as in the burgeoning apartment districts in the vicinity of the City Centre. The present gross density
The largest labour sector in Edmonton in 1961
of 15 persons per acre for the whole of Edmonton is
was the community, business and personal service
expected to increase to 16 persons per acre; the gross
industry, employing about 31,000, followed by whole-
density of the residential districts in the Central Area
sale and retail trade totalling nearly 28,000 and
is expected to increase from 30 to 80 persons per acre.
manufacturing with 17,500. In comparison with other
DIAG 2. â&#x20AC;&#x201D; PERCENTAGE EMPLOYMENT BY INDUSTRY IN EDMONTON AND ELEVEN MAJOR CANADIAN CITIES.
RESOURCES
MANUFACTURING
CONSTRUCTION
TRANSPORTATION
-
77:71
EINISMEMIEEIN
MINIMIMMM
TRADE
FINANCE
COMMUNITY
18111118511E
EDMONTON
PUBLIC ADMIN. ELEVEN MAJOR CITIES INDUSTRY UNSPECIFIED In
3.8
Lst 0
distribution.
major Canadian cities, Edmonton has relatively fewer people employed in manufacturing and more in almost
Employment in finance, insurance and real estate
every other industry.
firms doubled in Edmonton between 1951 and 1961. The significant physical resource development
Although increasing more rapidly than population the
programs in the Edmonton region have led to substantial
percentage of employment in this industry is still lower
local employment in oil and gas well servicing, petroleum
in Edmonton than in other major Canadian cities as
prospecting and services incidental to mining. It should
Edmonton lacks head offices of major insurance com-
be pointed out that 1981 forecasts of employment by
panies.
industry were based on 1951 Census data and 1961 Dominion Bureau of Statistics estimates. Subsequently
The wholesale and retail trade sector is a more
the definitions of industry categories were altered
significant part of Edmonton's economy than it is for
causing significant differences between 1961 estimated
most Canadian cities. The need to service a large
and 1961 actual data. Although the total employment
hinterland or trade area is especially evident by the
picture is not affected, new forecasts of employment by
relatively higher local employment in wholesale trade
industry are necessary.
activities.
In the past two decades, manufacturing employ-
The presence of the University, vocational schools
ment (which is examined in greater detail in the
and other service establishments such as hospitals,
Industrial Development Chapter) has been increasing
engineering and business management services which
moderately as a percentage of the total local employ-
serve the region account for the relatively high percent-
ment. Expansion can be expected in consumer goods
age of employment. In addition, since Edmonton is the
industries and resource based secondary manufacturing
capital city of the Province of Alberta and the site of
industries.
armed forces facilities, the percentage of local employment in the public service industries is slightly higher
In view of the rapid population and industrial
than the average for major Canadian cities. The rate of
growth in the past, the percentage of local employment
growth of employment in Local, Provincial and Federal
in the construction industry was well above that of the
Government sectors should remain fairly constant and
1961 average for the nine other major Canadian cities.
increase in proportion to population growth.
The anticipated continuation of strong economic and population growth is reflected in the forecasts of
Generally, Edmonton's economy is well diversified.
construction employment for 1981.
It is certainly more immune than most Canadian cities from national business cycles as transmitted through the
The role of Edmonton as a major transportation
manufacturing sector. If a high enough growth rate can
centre is reflected by relatively greater employment in
be achieved, cyclical employment should not be a
the transportation industry locally, than in other
major problem. It is, however, quite susceptible to
Canadian cities. With continued population growth
seasonal unemployment and changes in production and
in the region, increased resource development, the
prices of agricultural and natural resource products. With
construction of new and better transportation facilities
the clearing of additional agricultural land and increased
and expansion in the area served by the City, it is
resource development, Edmonton can look forward to a
expected that employment in this industry will continue
period of steady growth over the next two decades.
to be an important segment of local employment
3.9
• • • • • • • • • •
• • • • • • • • • • S S
Chapter IV
URBAN GROWTH AND LAND USE To accommodate new residential development and
Economic and social values are constantly changing
new or expanding industrial, commercial, public and
and, consequently, the physical plant in some areas can
institutional uses, additional land will obviously be needed to augment that presently being used for these
become obsolete. Since these changes could affect the
purposes. The direction and rate of expansion of each of
directions of growth as outlined in this General Plan need
these uses is influenced by many factors. It is the
to be periodically reviewed and adjusted.
projected land use patterns, the areas, types of use and
planner's responsibility to recognize these forces and
EXISTING LAND USE PATTERN
mold or direct them to achieve the physical environment desired.
In addition to economic, social and community values, the influence of existing development can
LAND USE DETERMINANTS
strongly affect future urban growth and land uses. Thus
A basic prerequisite to land use planning is
the location of existing residential, commercial, govern-
knowledge of the physical factors of the area under
mental, recreational and industrial land uses limits the
study. Topography, subsurface geology, vegetation, soil
number of choices available for the development of
bearing capacity, water pools and streams, drainage, mine
adjacent land. For example, the location of industry can
workings and micro-climatology are some of the more
severely restrict the availability of adjacent land to non-industrial uses, particularly those of a residential
important factors that must be considered.
character. Secondly, the shape of the urban land use pattern is influenced by the economics of utility extension, the
The Land Use Map in the map pocket is a
cost of land and the time - distance factor for travel to
representation of the manner in which land in the City is presently being used. It provides a base on which
other parts of the Metropolitan Area.
the 1981 Land Use Plan can be formulated. This Complexly related to these physiographic and economic determinants of land use are those of social
pictorial description of the urban setting will also assist
origin. Preferences for certain types of residential
knowledge of existing land use.
in guiding day to day decisions which depend upon a
accommodations or preferences in the location of community facilities such as churches and shopping
PROPOSED URBAN GROWTH AND LAND USE PATTERN
facilities can differ between communities. An appreciation of local customs, beliefs, traditions and cultural biases is therefore required.
Objectives 1. To plan for an immediate urban area to accom-
The final force in land use determination is that of â&#x20AC;˘ public interest. Through legal power from the local
modate 590,000 to 650,000 people by 1981, and
and provincial governing agencies, the public should
for a Metropolitan Area of 670,000 to 720,000
receive protection from accident hazards, disease, noise
people by 1981.
and pollution. Adequate daylight, sunshine, privacy and opportunities for normal family and community life
2. To allow for the long range expansion of the
need to be safeguarded and, finally an aesthetically
Metropolitan Area to approximately a million
stimulating environment should be maintained.
population by the year 2000.
4.1
be located:
3. To consider those changes in population characteristics as they affect the planning and
(a)
development of the City.
in convenient proximity to living areas with interconnecting
transit
and
thorough-
fare routes nearby to insure easy access.
4. To provide a plan for the orderly and economic growth and renewal of the City consistent with the
(b)
in convenient proximity to other work areas
need of providing the best possible living, working,
where uses in one area are accessory to uses
shopping and recreational environment.
in another. (c)
5. To provide sufficient area for every land use as
to ensure that some work areas have accessibility to heavy transportation facilities and
required by growth anticipated during the Plan
large capacity utility services.
period. (d) 6. To provide an internal arrangement of land uses
in areas which can provide sites of adequate size, conducive to economic development and
consistent with the needs of the neighbourhood,
properly situated for the particular uses in-
community and region.
tended.
7. To eliminate existing conflicts and avoid future
2. The living areas, defined here as the residential
conflicts between incompatible land uses.
communities including the neighbourhood serviceslocal stores, playgrounds and elementary schools-
8. To provide as wide a choice of land for develop-
should be located:
ment as possible, while still maintaining compact (a)
orderly development.
in convenient proximity to work and leisure time areas with adequate transit and roadway facilities.
9. To provide a plan whereby development can be efficiently programmed in order to co-ordinate
(b)
the provision of all public services and utilities in
in areas protected from through traffic and incompatible non-residential uses.
the most orderly and economic manner. (c)
in areas which can be cleared and serviced economically yet which are conducive to
10. To co-ordinate the arrangement of land uses with
attractive development.
the circulation routes to ensure an efficient movement of people and goods within the City and to
(d)
and from the City.
in various locations to ensure sufficient choice of site and density.
11. To provide a City-wide land use plan which will 3. The location criteria of leisure time areas, defined
be a useful guide to the general public ., developers
as the major cultural and recreational facilities
and all levels of government.
of the City, include: Principles
(a)
Although many different land use categories can
(b)
convenient proximity to living areas. major parks and large open spaces should (to
be differentiated, there are perhaps four major land use
the extent possible) be located so as to take
divisions: work areas, living areas, leisure time or play
advantage of natural features such as ravines,
areas and the area needed for the movement of people
valleys and treed areas. Land not suitable for
and goods.
other urban purposes can very often be most appropriate for park and open space
The principles as to the location of each are summarized
use.
below: (c)
cultural and spectator sport facilities usually
1. Work areas, consisting of those parts of the City
require a reasonably central location with
devoted to manufacturing, trade and services should
transit and thoroughfare access from all parts
4.2
•• •
• •
• • • • •• • • • • •
• • • • •
KEY
CENTRAL AREA
WA 7
INDUSTRIAL INDUSTRIAL RESERVE RESIDENTIAL RIVER VALLEY AGRICULTURAL
EDMONTON GENERAL PLAN
DWG.
URBAN GROWTH SECTORS
2
URBAN GROWTH AND LAND USE
CHAPTER IV
• •
the City in that direction. Sectors 3 and 9, extended
of the City.
beyond the City boundary, illustrate the expansion of 4. Transportation facilities, often requiring as much
Sherwood Park and St. Albert. As a general policy, a
as one-third of the total urban land area, must be
greenbelt area providing space for large institutional and
provided to give access to individual properties as
recreational uses has been provided to separate urban
well as accommodate traffic generated between
uses in Edmonton from those in the satellite
land uses.
communities. Industrial expansion should be confined to Sectors 4, 8, 9 and 10 except where residential expansion
THE 1981 LAND USE PLAN
is already designated in Sherwood Park and St. Albert. Expansion beyond 1981 to the year 2000 is also
Given the expected population and employment
mapped giving some indication of the type of urban
increases to 1981 and the densities of the respective
pattern that could be expected by that time.
developments, the number of acres needed to accommodate these increases can be calculated. The following table lists the amount of land area presently
Finally, the 1981 Land Use Structure Plans
occupied and land needed for development by 1981:
include, in addition to a more definitive demarcation of land use types and boundaries than in the schematic
The City of Edmonton
plan, the major thoroughfare proposals for the City.*
Land Use - Net Acres . Use Category
acres
Residential Commercial Public & SemiPublic
10,000 1,600
1961 percentage
These plans are a vital part of the General Plan acres
1981 percentage
document and illustrate many of the objectives, principles and standards expressed herein. They may be made
Industrial & Railway Streets & Lanes
32.2 5.1
18,500 2,800
32.6 4.9
binding and legal in so far as directions of growth, area, density and intensity of development are concerned.
7,200 2,800 9,500
23.2 9.0 30.5
12,600 7,300 15,600
22.2 12.8 27.5
The Land Use Structure Plans are a guide in formulating zoning, subdivision, urban renewal and other planning decisions. They also give some indication as to which
TOTAL
31,100
100.0
56,800
100.0
areas might be acquired for roadways, transit, schools, parks and public buildings. Finally, they are an in-
Based on the goals and principles of growth and
valuable guide to the residents of this community
land use development expressed previously, a general
regarding the direction of growth, the provision of
urban expansion pattern can be formulated. Isolation
services and the location of the various land uses.
of the various expansion areas is achieved by dividing the
Pursuant to Section 97 of the Planning Act, land uses
City into 10 pie-shaped sectors, thereby permitting
shown outside the City boundary are subject to the
discussion of each area.
approval of the rural municipalities in which they are contained.
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
* Under the Freeway Program, some portions of this
Airport in Sector 2 limits somewhat the expansion of
freeway system may in fact be constructed after 1981.
4.4
•• •• •• •• •
• • • • • • • • • •
Chapter V
RESIDENTIAL DEVELOPMENT INTRODUCTION DIAG.
1 - CITY RESIDENTIAL DEVELOPMENT 1951 - 1981.
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
180 DWELLING U N ITSINT HOU S ANDS
II has created considerable suburban expansion, largely in the form of single family dewellings, and only since 1961 has a significant trend toward Central Area high density apartments occurred. Suburban growth in Edmonton since 1949 has developed on the neighbourhood unit principle. Within the neighbourhood, playgrounds, schools, churches and other se•rvices 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
ok‘15 'CO NN
160 140
'
INCLUDING JASPER PLACE AND BEVERLY
120 SINGt.E & TWO AtIt11.3 UNITS 100 80
OVCS
60 40 20 0
, 1 I . h. ON r-I 1,1 ul 111 in 01 en 1.n Os 01 VI ON 01
1
i
■-1
en
en
10 %.0 tO ON 00 01
I n 01 r..4 V.1 r... 00 r.... 10 01 ON 01 ON
4V) 01
01
00 01
avoid the need for small children to cross busy traffic YEAR
arteries.
DWELLING UNIT TYPES AND LAND REQUIREMENTS Residential Units S.F. 1961*
Walk-Up Apt.
Row
High Rise
Other
Total 87,500
55,300
15,500
2,500
10,200
800
3,200
63.2
17.7
2.9
11.7
.9
3.6
100.0
93,200
19,300
9,600
41,700
16,400
1,800
182,000
51.3
10.6
5.3
22.8
9.1
.9
100.0
8,500
1,000
150
140
10
200
10,000
85.0
10.0
1.5
1.4
0.1
2.0
100.0
13,300
1,600
600
1,000
100
200
16,800
79.2
9.5
3.6
5.9
.6
1.2
100.0
Percentage 1981
2.F
Percentage
Net Residential Acreage 1961* Percentage 1981 Percentage
* 1961 figures Include Jasper Place and Beverly
HOUSING INVENTORY verted two family dwellings.
For an analysis of existing conditions and future
Row Terraced dwellings of three or more semi-
requirements, the various types of housing accom-
detached units.
modation are classified into the following categories: S.F. Detached single family units.
Apt. Under six storeys and containing four units or more.
2.F. Duplexes, basement suites and other con-
5.1
H.R. Six storeys and over.
DENSITY DISTRIBUTION - 1981
Other: Converted dwellings containing more than
Expected population densities may be grouped
two rooms or apartments, dwellings attached
into four different areas.
to commercial structures, trailers and in-
Low Density - up to 40 people per net acre.
stitutions, etc.
This category generally consists of single family The majority of housing units are of the single
dwellings and occupies the major portion of the land
family type; however, since 1961 there has been an
area devoted to residential use. These areas are located
increasing trend toward multi-unit construction. The
in the newer neighbourhoods near the periphery of
older and more central area consists of walk-up apart-
urban development and consist of single family dwellings
ments, converted housing and, more recently, high-rise
with minor apartment concentrations near transportation,
apartments. New areas are still predominantly single
commercial and employment centres. •
family in character with apartments located near shopping centres and transportation routes.
Intermediate Density - Up to 90 persons per acre.
It is expected that of the population increase of
It consists of a combination of converted dwellings,
197,600 between 1969 and 1981, 132,400 will be
walk-up apartments and single family units. This area,
accommodated in outline plan areas, 42,000 in presently
in transition from single family to converted dwellings
developing areas and 23,200 in existing built-up areas.
and apartments, is located within the outer ring of low
Although multi-family dwellings will not occupy any
density housing.
greater proportion of total residential land, the number of multi-family units is expected to increase as a portion
Medium Density - up to 150 persons per acre.
of total dwelling units. These areas, adjacent, for example, to the Central Data for new residential construction in recent
Area, the southside commercial district and the
years indicates a trend towards more apartments, es-
University of Alberta, consist primarily of walk-up
pecially high density high-rise structures. The ratio
apartments with some high-rise apartment develop-
between single family-duplex and apartment-row
ments.
dwelling unit construction per year has changed from 90 percent single family-duplex and 10 percent
High Density - up to 300 persons per acre.
apartment-row prior to 1961 to 30 percent and 70 percent respectively in 1968. It is anticipated that
This category is adjacent to the central business
construction of these two types of dwelling units will
district and consists primarily of high-rise apartment
be equal in the near future.
structures.
As of 1965, there were some 40 high-rise structures in Edmonton, totalling 4,000 units, ranging in size from
POPULATION DISTRIBUTION BY DENSITY AREA
40 to 300 units each. It is anticipated that by 1981 there will be a total of 16,400 such units, in other words, one-third of new apartment construction will consist of
1961
high-rise units.
The "other" type of residential units are expected to decrease slightly because the converted type of
Density
Percentage
No. of People
Low Intermediate Medium High
205,000 104,000 4,000 2,000
65.0 33.0 1.4 .6
365,000 175,000 35,000 45,000
59.0 28.5 5.5 7.0
315,000
100.0
620,000
100.0
dwelling located in the central and older areas of the TOTAL
City will generally be replaced by new apartment
1981
No. of People
Percentage
construction. This transition area, containing converted dwellings, is expected to move outwards, but to a lesser
The
degree, due to the absence of large two and three storey
trend for provision of residential accom-
modation to higher density development is shown in the above table.
houses beyond the Central Area.
5.2
• • • • • • • • • • • • • • • • • • • • •
•
_
/ I 4
• • • • • • • • • • • • I •
. ...
..
....
.. ........... •• • • • • • •-•
\
/, ..
;17'
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................ ....... . . ' ...
;
........
.........
..........
..........
; -
r••••i:1."1/8=44; " 9 •
,•••
1--1
-
1
1
:
-
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-
.
. -
:„.._ ..- . . • _ .
,
.
_ -_
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.:' 1---1 "--,_-",.",- ' U:i_.H1___-, 1 ..
I
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l
■
-
'
LOW DENSITY - PREDOMINANTLY SINGLE FAMILY RESIDENTIAL - UP TO 40 PERSONS PER ACRE
LOW-MEDIUM DENSITY WITH CONVERTED DWELLING & SOME SMALLER APARTMENTS - UP TO 90 PERSONS PER ACRE
iliiii I IIII 1
EDE
MEDIUM DENSITY' - UP TO 150 PERSONS PER ACRE• HIGH DENSITY - UP TO 300 PERSONS PER ACRE f
.
EDMONTON GENERAL PLAN
DWG.
RESIDENTIAL DENSITY BY AREA
1
RESIDENTIAL DEVELOPMENT
CHAPTER V
Objectives for Residential Development
to the circulation system is at its best. Medium densities are appropriate beyond this ring of high
1. The needs of people are diverse, and their
density and along major transportation corridors
social, cultural and economic situations differ
radiating from the downtown. In suburban areas,
vastly. This must be accepted and planned for,
concentrations of higher densities are most
so that every sector of the population is
appropriate in areas having easy access to arterial
provided with the opportunity to have suitable
roadways
accommodation.
or rapid transit stations or within
walking distance of major attraction centres. In this manner, the density of development is
2. To create in the suburbs, by the physical development of land, socially integrated com-
directly related to the transportation system thus minimizing the costs of the system while ensuring
munities, within which may be enjoyed the
maximum usage.
highest standards of safety, health, convenience and privacy. To continue the creation of neighbourhood units in which the day-to-day
Principles for Residential Development
needs of the residents may be satisfied, but
1. Careful study must be given to the design of each
with increased attention to aesthetics to relieve
new neighbourhood in relation to the next, and
the sometimes visually sterile appearance of
to the convenient grouping of neighbourhoods
suburban development.
into residential districts.
3. The characteristics of mature, stable older
2. In the design of new residential areas consid-
residential neighbourhoods should be preserved.
eration should be given to the provision of a
Especially important is the avoidance of spot
greater variety of lot sizes.
zoning which tends to prejudice the continued well-being of these areas. When redevelopment
3. The internal street pattern of a neighbourhood
to higher residential densities in older areas is
should provide efficient access to all parts of the
being considered it should only proceed on a
neighbourhood. Non-local or through traffic
comprehensive basis after thorough studies of
should be eliminated in order to create a quiet
facilities such as schools, parks, circulation
and safe environment.
routes and utilities which are required to accommodate increased densities have been
4. Heavy traffic routes adjacent to residential dis-
completed. Through this procedure the integrity
tricts or separating neighbourhoods must be
of stable, older areas will be maintained while,
adequately buffered to protect the residential
at the same time, redevelopment will only
amenities. In this regard, a substantial increase is
proceed in areas appropriate for redevelopment.
necessary in the width of buffer strip and the intensity
of landscaping over that presently
provided. Roadway cost estimates should make
4. To ensure that suburban expansion takes place in the most orderly and economic manner, so
provision for these protective facilities as they
that investment and maintenance costs are kept
are vital
at a minimum.
principal causes of blight and shifting land values
if the roadways are not to become
in the residential districts : 5. To prevent the intrusion of incompatible uses which would adversely affect the health and
5. Utility alignments should ensure maximum inhibiting without unnecessarily economy
amenities of the district, or otherwise seriously interfere with the maintenance of property
imaginative neighbourhood design. Power and
values.
telephone lines should be underground in all residential districts.
6. Since the framework of an urban area is, in effect, its transportation system it is essential that the intensity of residential uses be directly
6. To minimize the hazards of on-street parking in quiet housing areas by encouraging laneless sub-
related to this system. The areas of highest
divisions which necessitate front-drive garages
residential density should only be permitted in
unless, for some specific reason, it can be shown in a particular area that laneless subdivisions are
close proximity to the downtown where access
• • • • • • • • • • • • • • • • • • • •
5.4
•
uneconomical or otherwise undesirable. 7. 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 safety and convenience if a major roadway is adjacent to pedestrian generating land uses. 8. 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 I---
expansion be based upon an orderly and
DENSITY INCREASES FROM PERIPHERY TO CITY CENTRE
economical staging program, but without inhibiting healthy competition in the house building industry. 9. 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 and made available to the whole community. 10. House groupings, as a form of creating a physical and social unit at an human scale should be introduced wherever possible by the use of culsde-sac, small public landscaped areas, etc.
MEDIUM-HIGH DENSITIES AT EMPLOYMENT, COMMERCIAL AND TRANSPORTATION CENTRES
11. In order to improve the quality of apartment areas, detailed studies of the following aspects of apartment standards should be undertaken: the most appropriate limitations on maxi-
(a)
mum density based on good living
,
conditions, adequate services and tolerable traffic conditions.
r7itakg..
Alm
,ter
„-
DIAG. 2
1
I
DENSITY RELATED TO EMPLOYMENT CENTRES AND TRANSPORTATION FACILITIES 5.5
—
DESIRED RESIDENTIAL DENSITY PATTERN.
•
HIGH DENSITY
•
MEDIUM DENSITY
0
LOW DENSITY WITH APARTMENTS
•
LOW DENSITY PREDOMINANTLY SINGLE FAMILY
(b)
(c)
the desirability of flexible setbacks to
redevelopment to prevent the wasteful creation
obtain the best use of the lot and the
of isolated lots and to relate the major structures
least harm to surrounding development.
to each other for an harmonious and desirable residential environment.
siting for the best use of sun, air, wind, views, openness and privacy.
(d)
(e) (f)
13. The maintenance of high standards for active
means for achieving a pleasant architectur-
recreational areas in suburbs has deterred the
al appearance.
provision of passive recreational areas on even
maximizing landscaped open space.
a modest scale. The inclusion of amentiy features such as ornamental parks, treed walk-
provision of more attractive screening for
ways and landscaped buffer strips is considered
parking areas or construction of multi-
essential to provide relief from the otherwise
level parking, preferably underground.
uninterrupted housing mass. 14. The adequacy of existing public open space in areas of older housing and areas with increas-
12. Redevelopment in older residential districts has generally occurred since 1960 in the form of
ing density due to apartment development re-
walk-up and high-rise apartment development.
quires examination in detail.
This has, to a large extent, occurred on a piecemeal basis, with little regard for the
15. The proposed name of every residential area,
overall visual form of the district. If any
street, school or other facility should not be
significant improvement is to be achieved the
duplicated nor should it approximate phoe-
redevelopment of larger areas must be en-
netically the name of any other area, street or
couraged and design plans prepared whereby
facility already named. The name should have
the development of a district could be pro-
some significance to Edmonton and its past.
grammed for some years to come. If necessary, the development scheme procedure (Sections
16. Zoning of residential land should be based on
114 to 117 of The Planning Act) could be used
a periodic assessment of the demand for various
to ensure the most orderly and economic
types of housing accommodation.
5.6
•• • •• • •• •• •
• • • • • • • • • •
Chapter VI
COMMERCIAL DEVELOPMENT
48 percent. In 1961, net commercial development
INTRODUCTION
occupied 1,600 acres (including Jasper Place and Beverly) Commercial development is strongly competitive
or 5.1 percent of the total developed area. By 1981, the
and more sensitive to a wider variety of factors within
needs are expected to equal about 2,800 acres or about
the local economy than most land uses. The location
5 percent. Basically, such factors as an increased
of a commercial activity often means the difference
population, increased personal income, increased sales
between its success and failure. In the early stages of
competition and a wider and better selection of goods
City growth, various commercial enterprises obtained
and services has and should in the future contribute to
choice central locations downtown and near centres of
maintaining the demand for commercial property
activity on busy traffic routes. Retail stores and hotels
throughout the City.
located where pedestrian traffic was highest while offices located above stores, in industrial and warehouse build-
By 1981, the Central Area is expected to contain
ings or in separate office buildings near the central
about 55 percent of the commercial employment in
retail area.
primary retail outlets (comparative shopping) within the Metropolitan Area. Secondary commercial employment
Whereas retail trade continues to be the dominant
(includes convenience shopping, entertainment and com-
activity and land user downtown, emphasis has changed
mercial recreation) is expected to locate largely in the
and downtown has become a centre for carrying on
Central Area. Warehousing and storage facilities should
professional and administrative business. Various factors
be encouraged to locate in the wholesale distribution
account for this trend. Firstly, new companies establishing
district or in industrial areas.
offices in Edmonton have located near the greatest activity centres with the advantage of serving the With the advent of the automobile, commercial
metropolitan population from a central location.
development has been following a trend geared primarily towards facilitating the consumer and his automobile.
Secondly, companies which formerly located in older and functionally obsolete buildings realized that to
Perhaps the most revolutionary and significant user of
compete with the newly establishing companies, it was
commercial land in the previous ten years has been the
necessary to locate in prestige locations near the centre
multi-purpose planned shopping centre and supermarket.
of activity. Thus a tremendous demand for modern downtown office space was created. In the future, the
These centres sprang up as the main traffic routes
most dominant form of downtown development is
developed and this lei] to the allocation of large areas for
expected to be the large office and/or apartment build-
commercial uses. They have reached a high level of
ing with space for diversified commercial activities on
development becoming the dominant distributors of
the lower floors.
food and goods, to a large extent replacing isolated neighbourhood stores and generally supplementing downtown activity. The location of shopping centres on
Rapid increases, somewhat comparable to past increases, are expected in every phase of commercial
major thoroughfares is a vital factor in their successful
development, particularly in retail, office and hotel
operation. Customer convenience, time-saving ad-
development. Retail sales in the Edmonton area increased
vantages, the provision of easy accessibility and ample
from 285 million dollars in 1954 to 453 million dollars
free parking are the reasons behind the success of these
in 1964; an increase of 168 million dollars or 59 percent.
centres. The development of planned shopping centres
In the same period, the population of the trading area of
and supermarkets is continuing to increase rapidly and
Edmonton increased from 482,000 to 715,000 or over
this trend is expected to continue.
6.1
Shopping centres in new areas should be designed
2. Commercial development should be integrated
as part of the planned neighbourhood or community.
visually and functionally with the residential
Older deteriorated strip commercial development will
area in which it is located. Access, screening,
require special attention in order to operate on a more
landscaping and general performance standards
efficient and competitive basis. Downtown commercial
should be utilized to create compatible, har-
development should continue to expand and serve the
monious development.
entire City and its region. Commercial activity in the Central Area will be strongly influenced by economic
3. Scattered commercial uses in residential neigh-
activity throughout the region.
bourhoods and strip commercial development along arterials should be discouraged in favour
Objectives for Commercial Development
of a comprehensively planned, nucleated de-
1. To provide a commercial pattern that will
velopment. Existing facilities of this kind in a
recognize the importance of the central business
deteriorated state should be redeveloped or
district retaining its dominant role, providing
relocated to correspond with the basic principles
the most comprehensive and varied commercial
of desirable commercial development.
services. 4. A variety of land uses should be integrated with new shopping centre designs. These uses may
2. To provide a systematic and orderly pattern of
cultural,
park
and
recreation,
commercial development that will adequately
include
serve the anticipated population increase and
educational, governmental and residential as well
distribution.
as other facilities which can be sited harmoniously and compactly together in the same unit for economy and convenience. This should
3. To encourage healthy, attractive and economical commercial development through the ap-
improve the viability of the centre and provide
plication of sound planning principles so that
the neighbourhood or community with a more
investments and commercial property values
clearly defined focus or centre for a wide
are protected in the public and private interest.
variety of community functions. 5. Shopping centres should be designed so that
4. To protect residential neighbourhoods and other
parking areas are conveniently accessible to the
land uses from the intrusion of
undesirable commercial uses and to avoid serious
retail outlets and provisions made for a high
conflict of these land uses.
level of convenience to the pedestrian. 6. Shopping centres should be as accessible as
5. To improve the traffic capacities and safety features of major streets through the careful
possible from the areas they serve. For example,
location and grouping of commercial land uses.
centres may be located at the intersection of
6. To encourage the rehabilitation and revital-
neighbourhoods. Regional centres should be
minor arterials so as to serve two to four located at junctions of major arterials in a manner to serve one or more residential com-
ization of potentially healthy commercial areas that have deteriorated.
munities. 7. To avoid designating excessively large or scattered land areas, or poorly located sites
7. Traffic safety can be assured by: locating and designing commercial development near major
for commercial use.
access routes; creating minimum conflict with through traffic; providing adequate off-street
Principles for Commercial Development
parking, loading and unloading areas; and by avoiding vehicular and pedestrian traffic con-
1. Adequate commercial land of a suitable size
flicts.
and location should be provided to develop a full range of commercial development to meet
8. The central business district should be recognized and strengthened as a centre for retail,
the varied consumer needs of the population by 1981 and beyond.
6.2
• • •
•• • • • • • •• •• •
•• • •• • •
••
• •• • •
f
o
CENTRAL BUSINESS DISTRICT PLANNED REGIONAL SHOPPING CENTRES
•• •
•
PLANNED DISTRICT SHOPPING CENTRES
•
PLANNED NEIGHBOURHOOD SHOPPING CENTRES
11■1
STRIP COMMERCIAL DEVELOPMENT
EXISTING COMMERCIAL DEVELOPMENT
•
CENTRAL BUSINESS DISTRICT PLANNED REGIONAL SHOPPING CENTRES • ,
PLANNED DISTRICT SHOPPING CENTRES
• PLANNED NEIGHBOURHOOD SHOPPING CENTRES STRIP COMMERCIAL DEVELOPMENT
-Inr STRIP COMMERCIAL IMPROVEMENT AREAS I I ANTICIPATED COMMERCIAL DEVELOPMENT - 1981
• •
• EDMONTON GENERAL PLAN
DWG.
EXISTING AND ANTICIPATED COMMERCIAL DEVELOPMENT
1
COMMERCIAL DEVELOPMENT
CHAPTER VI
office, business and recreational - facilities by
underground pedestrian walkways could make the entire
improving public transportation, access, cir-
core retail area accessible by foot. A more detailed
culation and parking. Encouraging new high
discussion of these policies and plans are provided in
density housing near the downtown would also
the Central Area and the Transportation Chapters.
increase demand for the retail goods and
Planned Shopping Centres
business services located here.
A planned shopping centre is a group of com-
TYPES OF COMMERCIAL DEVELOPMENT
mercial establishments, designed, developed, owned and
By 1981 the commercial use types will broadly consist of the central business district, regional shopping
vided on the site. It is related in its location, size and
centres, district shopping centres, neighbourhood shop-
type of shops to the trade area which the unit serves. It
ping centres, strip commercial development, highway
is sometimes grouped with other community facilities for greater convenience and economy.
managed as a unit with adequate off-street parking pro-
service centres and isolated stores.
The Central Business District
Good site selection and shopping centre design should provide safe, easy, internal pedestrian circulation
The central business district is the dominant
and convenient vehicular access to major thorough-
commercial type in Edmonton. Here the greatest con-
fares in conjunction with adequate loading and unloading
centration of commercial and office development is
areas well separated from customer parking.
reflected by the highest land values, the tallest buildings and the maximum concentration of vehicular and
The floor area ratio is a useful indicator of sound
pedestrian movement. Because of its dominance in
shopping centre development. Floor area ratio is the
business and finance facilities, professional services,
relationship of the total floor space of buildings to the
specialized shopping and other activities, the central
site area. The ratio should not be greater than 0.35;
business district is the focus of the Central Area, the
that is, 35 square feet of floor area for each 100 square
City and the region. A downtown store or office will
feet of lot area. However, the ratio could increase to 0.50
service not only people going downtown specifically to
in multi-storey buildings or centres with a larger
shop, but also those going to work or to meet friends.
percentage of office space. This minimum standard permits the shopping centre to provide adequate space
The 1961 downtown employment total is expected to double by 1981 and this increase in commercial
for retail outlets, parking and traffic circulation. In
activity is planned for accordingly. This is in contrast
Edmonton, about 60 percent of the neighbourhood and
to trends in many other cities where downtown areas
district shopping centres and 100 percent of the regional
have been seriously affected by the decentralization of
centres have a floor area ratio less than 0.35. It is
commercial facilities. To avoid this happening
anticipated that the use of underground and multi-level
in Edmonton, it is necessary to strengthen downtown
parking facilities will increase at regional centres and
commercial growth, by implementing the policies out-
consequently these minimum site area ratios will vary.
lined in the Central Area Chapter.
The more spacious type of site development will tend to continue throughout the Plan period within suburban
Access to the downtown retail core is of major
areas. Parking facilities at commercial centres should be
importance for its successful operation. Major access to and from this area is to be provided by way of a freeway
greater emphasis should be given by developers to
loop joining the downtown roadway system to the major
"humanizing" these vast parking areas by imaginative
freeways and the Provincial highways beyond. Pro-
layout, screening and planning.
planned to handle peak loads in an average week. Much
vision for long-term parking near the downtown freeway loop should discourage parking and reduce congestion
Regional Shopping Centres
in the core retail area. Short-term parking within the downtown freeway loop will provide a rapid turnover of
Regional shopping centres provide retail and some
stalls for patrons using the retail services. Ultimately, a
limited office space serving major segments of the City.
sophisticated rapid transit system will become necessary
They characteristically contain one or more department
to enable large numbers of people to journey to and
stores as the major drawing power, a number of com-
from the retail core. A planned system of elevated and
parison shops and a variety of other commercial
6.4
• • • •
•• •• • •• • •• •• • •• ••
establishments. Regional centres, commonly one-owner
of arterial or collector streets on the periphery of a
developments, serve a trade area from 30,000 to 100,000
neighbourhood. The site areas are usually less than 3
persons. The site area for a regional shopping centre is
acres with a floor space of up to 30,000 square feet. The
usually 20 acres or more, with a floor space area of
trade area is approximately the neighbourhood in which
200,000 square feet. In Edmonton, there are presently
the centre is located or a trade area population of 3,000
six regional shopping centres: Westmount, Bonnie Doon,
to 10,000 people.
Meadowlark Park, Park Plaza, Northgate and Capilano Plaza. By 1981, it is probable that five more centres will
Strip Commercial Development and Highway Service
have developed or will be in the process of development:
Centres
the proposed Southgate centre in southwest Edmonton, one at the west limits of Edmonton, adjacent to Stony
Early commercial development in Edmonton con-
Plain Road, one in northeast Edmonton, east of 50
sisted of diversified retail and commercial facilities
Street, one in the Southeast Development Area and one
stretching along both sides of major traffic thorough-
in West Jasper Place.
fares or in small clusters on street corners. Some are an outgrowth of early independent community development catering to the daily needs of the people living
Regional shopping centres are generally located at intersections of major arterials, expressways or free-
nearby, such as Whyte Avenue in South Edmonton,
ways because of the importance of accessibility. The
Stony Plain Road in Jasper Place, 118th Avenue and the
location of centres and their individual functions should
Fort Trail in North Edmonton. Other strip or ribbon
be related to the convenience and time-saving advantages
development resulted from the location of early street-
to their customers. Convenience of location should be
car lines along 101st Street, 97th Street, 111th Avenue
stressed in Edmonton's case since Edmonton serves a
and 124th Street. Strip commercial areas usually stretch
very large region and shoppers coming in must find these
along congested centres carrying through traffic. In-
shopping areas easily accessible and complete.
adequate parking, poor accessibility, the distance the
District Shopping Centres
poor appearance contribute to a decline in their relative
pedestrian-shopper must walk to do his shopping and importance to the convenience shopper. District shopping centres generally serve about three to four neighbourhoods or a trade area population In addition to strip development within the City,
of 10,000 to 20,000. The leading tenant is usually a
additional highway service centres such as the ones west
large supermarket with perhaps a bowling alley, a
of 170th Street along Highway No. 16 West and south
clothing store or real-estate or insurance office in
on Highway No. 2 exist on land adjacent to major
addition to a drug store, beauty parlor or other retail
routes entering the City. Highway service centres catering
establishments common in neighbourhood centres. The
to the needs of the travelling public must be easily
site area for a district shopping centre is usually 3 to 10
accessible without interfering with highway traffic and
acres with a floor space area of 30,000 to 100,000 square
of a design standard reflecting the importance of the
feet. An appropriate location for a centre of this size
entrances to the City. Sites for service stations, public
would be on a major arterial or at the intersection of
garages, roadside restaurants, motels and motor hotels,
major arterials.
trailer courts and campsites should be provided. Neighbourhood Shopping Centres Isolated Commercial Areas Neighbourhood shopping centres are used for Isolated commercial areas, usually grocery stores
convenience shopping and specialized personal services by nearby residents and passing motorists. Small centres
that offer a variety of goods, are found within or near
generally include grocery stores, drug stores, a service
older residential areas of the City. These stores, serving
station and other small shops. In common with larger
an area from 3 to 6 blocks or 600 families depend upon
planned shopping centres, off-street parking and off-
extended business hours to survive the competition of
street loading facilities are provided. These centres may
the supermarkets. Although accounting for a very small
be under single or multiple ownership.
portion of commercial business in Edmonton, these isolated establishments perform a useful fuoction to their
The most favourable locations are at intersections
customers.
6.5
REVITALIZING STRIP COMMERCIAL AREAS OUTSIDE DOWNTOWN
transit operations should be devised to take advantage of the lineal nature Of the area. The experiments of other cities with special transit
Introduction
vehicles such as the minibus should be studied Originally strip commercial growth evolved along
to determine their possible application.
major transportation routes, transit lines or at the intersection of major streets. The increased utilization of
6. Commercial development in the district should
the automobile made the population considerably more
be attractive and pleasant. The standardization
mobile and dispersed and less dependent on commercial facilities near main transit routes. The absence of
design following a suitable theme should be
of an attractive facade and street furniture
adequate parking, accessibility, compactness along the
encouraged. The entire strip commercial area
strips and the construction of the all purpose shopping
should be considered as an architectural unit and should be of the highest quality.
plazas has led to the decline of strip commercial areas as major service centres. The following section provides examples of the types of techniques and improve-
7. Non-retail uses creating "dead spots" in the
ments which could be implemented to strengthen strip
continuity of shopping frontage should be
commercial areas. The exact nature of such improve-
removed, where practical, in order to provide
ments, however, can only be determined after a thorough
maximum concentration for the convenience
examination of the area through the district plan
of pedestrian shoppers.
process. Such an examination would take into account deficiencies presently existing in the area and would rely heavily on the suggestions of the residents and
8. The strip should be made as compact as
businessmen of the area as to how the area could be
open spaces with additional commercial de-
improved.
velopment. Major commercial developments
possible through consolidation and filling in
such as department stores should be placed at
Techniques and Principles for Improving Strip Commercial Areas
the centre of the strip as a major attraction around which the minor commercial outlets may beneficially locate. At the same time, uses
1. Adequate off-street parking facilities should be
which do not require to be central but which
provided throughout the strip commercial area.
benefit from a location in a commercial district,
All parking facilities should be screened from
for example, automotive and service facilities,
the main street or placed to the rear of the
may be suitably located adjacent to the strip.
commercial development. 9. Residential areas adjacent to the commercial 2. The shopping area should be made readily
area should be developed to higher densities
accessible from its tributary area through the
to encourage a higher market potential for the
careful design of roads and access points in
commercial areas and provide convenient shop-
the area leading to the district.
ping and service facilities for the apartment residents.
3. Open and enclosed attractively landscaped spacious malls should be provided. Maximum
A Plan for the Whyte Avenue Commercial District
attention should be given to providing yearThe area under consideration consists of the
round all weather protection.
portion from 99th to 109th Streets and from Whyte Avenue (82nd Avenue) north to the River. Develop-
4. Good pedestrian access should be provided from nearby parking facilities and from sur-
ment originated some sixty years ago around 104th
rounding residential areas. Pedestrianways
Street at the terminus of the early Canadian Pacific
should be well lighted throughout and shoppers
Railway line. A street railway system further encouraged
should be protected from weather discomforL
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
5. Where a major strip commercial area has developed and will further expand, a system of
vicinity of 104th Street and sparsely developed strip
6.6
• • • • • • • • ••
•• •• • •• •• ••
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QUAUTY AND CHARACTER IN STORE FRONT TREATMENT
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ALL WEATHER PEDESTRIAN PROTECTION
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CONSOLIDATE SIMILAR COMMERCIAL USES
É
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MINIMIZE PEDESTRIAN AND VEHICULAR CONFLICTS
PEDESTRIAN CIRCULATION CONVENIENCE
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ILLUSTRATING PLAN
EXISTING PLAN
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LAND USE KEY
E
=
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1:=3
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>ZZZ'
EDMONTON GENERAL PLAN
DWG.
PRINCIPLES FOR IMPROVING A STRIP COMMERCIAL AREA
2
COMMERCIAL DEVELOPMENT
E
IT
CHAPTER VI
.
(f)
commercial along Whyte Avenue from 99th to 109th Streets and north on 109th Street to the High Level
The lack of east-west traffic
routes in
south Edmonton has seriously overloaded
Bridge. The surrounding single family area has become
Whyte Avenue and congested
obsolete and is being replaced by multiple family dwellings.
sections at 99th, 104th, and 109th Streets. (g)
the inter-
Level crossing train movements on the main-
This area faces severe competition from planned
line and to the industrial area north of
regional centres and the downtown and its future is in
Whyte Avenue seriously hinder the smooth
jeopardy unless firm action is taken. The existing intensive commercial development, the employment
east-west traffic flow on Whyte Avenue.
potential of the area, the increasing high-density
The Objective
residential development nearby, the area's proximity to
The overall objective of the Plan is to provide a
the University and the present service area of Whyte
guide for complete revitalization of the Whyte Avenue
Avenue indicate that this area could be revitalized
commercial district and to attract more shoppers.
through careful planning to perform more effectively
Generally, the Plan proposes to:
as a regional commercial centre.
(a)
Existing Conditions
assemble land through public action to enable private initiative to develop larger, more integrated facilities;
The Whyte Avenue commercial district, because of the nature of its present state, may be divided into (b)
several functional groups. The core, around .104th
relieve and avoid traffic congestion by pro-
Street, contains the major retail, office and civic
viding better accessibilities and parking term-
concentration. Strip commercial east and west of this
inals;
core consists of mixed uses: retail, office, residential, (c)
industrial, churches, hospitals and vacant areas. Nodes
provide adequate pedestrian-ways and minimize pedestrian-vehicular conflict;
of commercial development on 99th and 109th Streets serve the immediate area. (d)
restrict permitted development to those uses which are most appropriate to the district;
Some of the major problems encountered in the Whyte Avenue commercial district are as follows: (a)
(e)
There is an excess of minor retail outlets of
enhance the appearance by making buildings, facades, signs and overall space aesthetically
the same category as evidenced by vacant
pleasing;
shops. (b)
(f)
Inadequate parking forces customers to park
protect surrounding development from congestion and general nuisance by providing
on the street or behind the Avenue some
buffers, adequate access and parking.
distance from their destination.
The Proposed Treatment (c)
Development consists of individually owned (a)
small shops, dilapidated buildings, noncon-
The core should be consolidated, increased and revitalized to create a highly competitive
forming land uses and vacant lots.
and specialized retail area for South (d)
Edmonton. This would involve considerable
A lack of adequate direct cross-river transportation facilities, thus tending to isolate
rehabilitation or redevelopment of sub-
this area from the central business district.
standard buildings and the introduction of
Cross river traffic from the south is routed
retail and office uses should be encouraged
down 104th Street directly through the
to locate and to provide a greater variety
centre of the shopping area. The heavy
of goods and services. Large department
traffic flow impedes both vehicles and
stores, shopping malls and related
pedestrian shoppers.
uses should be incorporated in the re-
supporting commercial uses. Additional (e)
6.8
• • • • • • •• •• • • • • • • • •• • •
development program. Major department
land users. Limited low cost accommodation
stores should be offered key positions in the
for young businesses in their formative stage
core area to attract customers and serve
could also be permitted. Uses locating west of the core area should orientate themselves
as the hub of the entire Whyte Avenue
toward providing services required and de-
district. New development should be laid
sired by the nearby University population.
out as part of the overall plan with a clear identity and function of its own. This can (d)
be achieved through use of wide setbacks
will provide direct connections from the
with attractive, open and/or enclosed
Whyte Avenue core to downtown areas of
pedestrian malls with grade-separated walks
population and employment.
connecting adjacent blocks. (b)
Construction of the new 105th Street bridge
(e)
Parking capacity in the area should be
The congestion at 104th Street will be relieved by one way thoroughfares on 103rd
substantially increased and located in a
and 105th Streets for north-south traffic.
manner so as to avoid congestion to the major thoroughfares. Parking facilities with (f)
access from minor streets would be a feature.
Additional east-west thoroughfares are plan-
Where possible, vehicular and pedestrian
ned for across Mill Creek on 88th and 89th
traffic should be separated.
Avenues and over the C.P.R. yards on 76th
With the essential retail and office function
on Whyte Avenue and allow for greater
concentrated at the core, the strip com-
customer convenience.
Avenue. This will reduce traffic congestion (c)
mercial areas to the west and east of 104th Street could best accommodate mixed com-
(g)
It is strongly recommended that the C.P.R.
mercial uses. The present area covered bet-
mainline from 109th Street to 82nd Avenue
ween g9th Street and 109th Street of the
be lowered. In addition to eliminating level
complex is too large as e â&#x2013; iidenced by many
crossings,
vacant stores and lots along Whyte Avenue.
property values in the area. It is also
It is recommended that sections of this
recommended that the industrial area north
this would greatly enhance
strip commercial area be used for other
of Whyte Avenue be eventually removed and
related uses, including high-density
the area redeveloped for high density resi-
resi-
dential development or by large commercial
dential purposes.
6.9
Chapter VII
INDUSTRIAL DEVELOPMENT INTRODUCTION
zeal in reaching out for new markets in, for example, the northwest United States and Far East, can spur the
Edmonton is basically a primary processing centre with secondary industrial development small in com-
rate of growth and ensure continued economic
parison to major eastern cities such as Toronto, Windsor,
prosperity for this community.
Montreal or Hamilton. In the last two decades, for
MANUFACTURING EMPLOYMENT
example, Ontario and Quebec have consistently accounted for 80 percent of the total manufacturing employ-
The impact of the regional agricultural activity and
ment in Canada while accounting for only 63 percent
oil and natural gas recovery in the region is especially
of Canada's population in 1961. However, manufacturing
evident when comparing local manufacturing activity
is relatively more important in Edmonton than in
to that in other cities. However, other Canadian cities
Calgary, Regina or Saskatoon. Understandably, the
have relatively more workers employed in the
relative sparsity of population and the long distances
manufacture of textile and knitted goods, machinery
to major North American markets have been significant
and equipment, electrical products, tobacco and rubber
factors in limiting the growth of manufacturing in
products.
prairie cities. The value of goods manufactured in the MetroNevertheless, Edmonton enjoys the prospect of a
politan Area has increased from 191 million dollars in
future rivalled by few other Canadian cities. Since
1954 to 497 million in 1964 - a growth rate of 10
February 1947, when the greatest oil discovery in
percent annually.
Canada was made at the Leduc field, twenty-five miles southwest of Edmonton, this City has experienced the
LOCATION OF MANUFACTURING ACTIVITY
development of an extremely sound economic base. It is the site of a substantial refining and petrochemicals
District 1 is a relatively new industrial area being
complex, one of the largest meat-processing and packing
partially opened for development first in 1951. At
centres in Canada, a substantial primary and secondary
present about one-third of the area is developed.
iron and steel industry, an increasingly important
Approximately two-thirds of the manufacturing estab-
centre of industrial and resource research and the site of
lishments in this district are engaged in the manufacture
major academic and vocational institutions.
of wood products, iron and steel products and nonmetallic mineral products, especially cement and con-
Although many new firms will be established in
crete block manufacture. District 2, which contains
future years, the City should expect a notable increase
C.N.R. and N.A.R. railway yards and the Industrial
in branch plant operations, joint ventures or license
Airport, is occupied primarily by firms engaged in the
arrangements whereby existing local manufacturers
manufacture of transportation equipment. There is
would undertake to produce goods for national or inter-
some concentration of wood products and furniture
national firms.
manufacture in the eastern portion of this district.
Continued resource development and expansion of
Of the 15 meat packing firms (large and small)
the local and regional population will necessarily lead to
in Edmonton, 9 are located in District 3. This district
growth of the manufacturing sector. The City of
contains all but one of the major slaughtering and meat
Edmonton, by undertaking appropriate industrial re-
packing plants and, in addition, includes tanneries,
search studies and sponsorship of industrial conferences,
stockyards, feed mills and feed lots. The odor problem
etc., and local entrepreneurs, through their initiative and
has been sufficiently severe to affect the amenities of
7.1
nearby residential districts. However, Provincial air
fectionery products, potato chips, processed cheese and
pollution regulations passed in 1961 and effective as of
other dairy products, breakfast cereals, beer and flour.
September, 1966 have forced most companies to install
Firms in the iron and steel industry also represent about
odor reducing equipment to control odorous emissions.
one-quarter of all the manufacturing establishments in
Thus, within the next decade, odor from the meat
this district.
packing industry will be significantly reduced and District 5 in the Central Area of the City contains
therefore much less of a problem influencing the
offices, wholesale and retail businesses. Although not an
development of land uses.
industrial district in the strictest sense, it does contain one-fifth of the manufacturing establishments in
With the exception of the area between 119th
121st Street north of 108th Avenue, District
Edmonton. Adequately served by transit facilities, this
4 is the oldest industrial area in the City. A very wide
area contains several clothing and other manufacturing firms requiring relatively large numbers of workers.
Street and
range of industries is located in this district. The food and beverages industry, accounting for 25 percent of the
There is also a marked concentration of printing,
firms in this district, includes manufacturing con-
engraving and publishing firms serving the office and
TOBACCO PRODUCTS AND RUBBER
ISM
LEATHER
0556t
DIAG. 1 — COMPARATIVE MANUFACTURING EMPLOYMENT DISTRIBUTION, 1961.
TEXTILE AND KNITTING ELECTRICAL PRODUCTS
EDMONTON
MACHINERY
AVERAGE
PAPER AND ALLIED MISC. MFG. INDUSTRIES FURNITURE AND FIXTURE
ZOStf
TRANSPORTATION EQUIPMENT PRIMARY METAL NONE METALLIC MINERAL WOOD INDUSTRIES
•:.:.:.:.:•:•:•:.:
PETROLEUM AND COAL PRODUCTS CLOTHING PRINTING PUBLISHING AND ALLIED CHEMICAL AND CHEMICAL PRODUCTS METAL FABRICATING
FOOD AND BEVERAGES 0
20
10
PERCENT
7.2
30
•\
KEY 1. Mixed Industrial •
1=6
-
2.
Transportation and Airport Study
3.
Meat Packing
4.
Mixed
5.
Central Industry
6.
Mixed Industry
7.
Steel
8.
Refineries and Chemicals
00 OF E04,04, 'O.
EDMONTON GENERAL PLAN
DWG.
INDUSTRIAL DISTRICTS
1
INDUSTRIAL DEVELOPMENT
CHAPTER VII
other commercial establishments in the district. Located
in industrial areas, it is expected by 1981 that 5,200
in this district are more than one-third of all local firms
additional acres of industrial land will be required within
in the miscellaneous manufacturing industry, including
the present City boundary and 2,100 acres beyond
scientific and professional equipment, jewelry and silver-
present City limits. Although metropolitan Edmonton
ware, plastic fabricator and signs and displays.
does have sufficient vacant land to accommodate this anticipated growth, shortages of large parcels of land
Early industrial development south of the River
suitable for heavy industrial uses exist within the City.
concentrated in the northern portion of District 6, where railroad facilities have been provided since 1891. Although development has been especially rapid in the
Gross Industrial Acreage (1964)
past decade, there is an ample supply of land for light
City of Edmonton
and medium industry. More than one-third of the firms
Remainder of Metropolitan Area
in this district manufacture iron and steel products.
Total
Establishments which manufacture or service equipment
Used 4,000
Vacant 7,000
Total 11,000
2,700
4,300
7,000
6,700
11,300
18,000
for the oil industry have tended to concentrate in this Agricultural land on the outskirts of the
area.
Metropolitan Area could in some areas, be used for industrial development, but this has not been included
Of the 28 firms in District 7 in 1963, 13 were in
in the above acreage calculations.
the iron and steel industry, 5 in the wood products industry. Generally, the firms in this area are extensive
Gross Industrial Acreage (1981)
users of land; many have land adequate for substantial expansion. District 8, located east of the City limits, is
Used
Vacant
Total
City of Edmonton
9,200
1,800
11,000
Remainder of Metropolitan Area
4,800
Total
occupied almost solely by oil refining plants (Imperial
Available
14,000
Oil, British American and Texaco), oil tank firms (Interprovincial and Transmountain Pipelines) and
Objectives for Industrial Development
secondary chemical product plants (Canadian Industries 1. To promote the achievement of a diversified or
I nterprovincial Chemicals and Naugatuck Limited, Chemicals). The largest petro-chemical plant in Canada,
balanced industrial mix which will provide a variety of employment opportunities, to provide
Chemcell (1963) Limited, is also located in this District.
greater cyclical stability and broaden the tax base of the community.
MANUFACTURING EMPLOYMENT FORECASTS Based on 1951 and 1961 Census data, studies
2. To draw industrial development to Metropolitan
undertaken by the Alberta Bureau of Statistics and
Edmonton by creating a sound and
studies of Provincial and Canadian growth patterns, it is
advantageous environment for industry.
estimated that, by 1981, employment in metropolitan Edmonton manufacturing industries will reach 33,360
3. To ensure that there are adequate reserves of
or 12 percent of the 1981 total labour force of 278,000.
industrial land for all anticipated requirements,
As a percentage of total manufacturing, employment in
and particularly for heavy industry.
the iron and steel industry and the non-metallic mineral industries should rise considerably. This would be
4. To protect and, if possible, enhance the
balanced by a relative decline in employment in the
locational advantages of industrial expansion in
foods and beverage industry. Although substantial de-
Edmonton, re: regional and national trans-
velopment is expected in petroleum, chemical and allied
portation connections, a skilled labour force
industries, automation is likely to cause modest employ-
and the provision of municipal services at
ment increases in these categories.
reasonable cost, especially the low cost of natural gas.
INDUSTRIAL LAND REQUIREMENTS Based on estimates of employment in manu-
5. To publicize the industrial development op-
facturing and related industries requiring a location
portunities available through sponsorship of
7.4
• • •• •
• ••
•• •• •• • •• • • ••
INDUSTRIAL EMPLOYMENT - METROPOLITAN EDMONTON
Primary Manufacturing Construction Transportation, Communication & Other Utilities Trade Finance, Insurance & Real Estate Service & Public Unclassified TOTAL
1981*
1961
1951
Labour Force
Labour Force
Labour Force
%
2,550 10,002 7,844
3.9 15.3 12.0
4,337 17,477 12,442
3.3 13.3 9.5
8,340 33,360 22,240
3.0 12.0 8.0
7,779 13,924 2,484 20,265 523
11.9 21.3 3.8 31.0 0.8
14,649 27,710 5,467 46,278 3,216
11.1 21.1 4.1 35.2 2.4
30,580 52,820 16,680 111,200 2,780
11.0 19.0 6.0 40.0 1.0
65,371
100.0
131,576
100.0
278,000+
100.0
%
%
*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, Namao and Fort Saskatchewan.
MANUFACTURING EMPLOYMENT - METROPOLITAN EDMONTON 1961
1951
%
Labour Force
%
Labour Force
%
Labour Force
%
3,236 800 536 317 71 715 1,587 1,904 167 762 254 379
30.0 7.4 5.0 2.9 0.7 6.6 14.7 17.6 1.5 7.1 2.4 3.5
5,300 1,139 918 598 363 1,294 2,917 706 820 1,113 1,589 631
30.3 6.5 5.2 3.4 2.1 7.4 16.7 4.0 4.7 6.4 9.1 3.7
6,016 1,820 824 738 276 1,127 2,652 925 1,278 626 1,133 2,090
30.8 9.3 4.2 3.8 1.4 5.8 13.6 4.8 6.6 3.2 5.8 10.7
8,670 3,170 1,340 1,340 670 1,830 5.340 2,000 3,000 1,170 2,000 2,830
26.0 9.5 4.0 4.0 2.0 5.5 16.0 6.0 9.0 3.5 6.0 8.5
10,797
100.0
17,477
100.0
19,505
100.0
33,360
100.0
Labour Force Food & Beverage Clothing Wood Furniture & Fixture Paper & Allied Printing, Publishing & Allied Iron & Steel Products Transportation Equipment Non-Metallic Mineral Products Petroleum & Coal Products Chemicals & Chemical Products Miscellaneous* TOTAL
1981
1967
*Includes: Textile & Knitting, Leather, Electrical, Rubber and Others.
7.5
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41.— ill El RA rILVal ,7427-1.0.10 EN, W rur. --1 rThrra ir !, ^ 7 7 6 1:111r# kgIr i ,0 90 Totilltv lifil iire;
i
tg 111111 ri.gad 40 Oilaills: 1.800 milligaill irj•=iiii 3 , 800 ..... ? r 1..1, _ ... 1.400 It'llii i". IIIIMIErati w-1111 .i ... . 0---ri _____
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PAIIIMI if.a 9EiNro ..1. illici
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n a. 6 , 9 0 0 _...iM . ■ ' ' ' ,,,,,, 6
r 4 , 2 00 08,, (129 rat I; E_'‘,:luilinraj L ....i.J – .
(,Ir ji :a ifoILI,Ioo , - 1 iisftlEtigi RA: - Arai wirg ihri s r. --.' - ifilMr:i' • .411* liki ...■/ 1 , 2 70 jiZIF . Elz g 67 8 g .1 1:11(•6•0 1
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NEW Em DI: i m
iiiiii-R, -0- , 3orva prams 0 (,•ro) ., 1.600 ' a .,480 ,.2 00
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i ri
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-
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6 8 00
•
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• '
•
KEY UPPER NUMBERS SHOW UPPER LOWER
1961
EMPLOYMENT
NUMBERS SHOW 1981 EMPLOYMENT
DIAG. 2 — METROPOLITAN EMPLOYMENT, 1961-1981.
• • •
industrial development conferences, advertise-
water supply and present low cost of
ments and other promotional means.
electrical power and natural gas should be safeguarded to maintain Edmonton's advantageous competitive position.
6. To recognize and plan for the changing transportation patterns which will make Edmonton
(d)Labour Force - Employers require persons
the dominant distribution and marketing centre for western Canada. In the past, Edmonton has
with varied skills and training ranging
been removed from the main commercial traffic
from the unskilled (a declining segment
routes for the distribution and trucking of
of the labour force) to the highly skilled
goods. However, with the completion of the
and university trained. Changes in tech-
more economical Yellowhead Route to
nology, automation and more sophis-
Vancouver and the anticipated completion in the early 1970's of a highway connecting
ticated inter-firm competitiveness will
Edmonton to Prince George and the port of
force be continually upgraded and
Prince Rupert, Edmonton will be the only city
expanded.
require that job skills of the City's labour
in western Canada with direct access to two major seaports and thus, with its already
3. Wise and careful resource development in the
excellent rail and air facilities, assume the dominant role as western Canada's distribution
Edmonton region should be encouraged since this directly contributes to the continued
centre.
growth
and
stability
of
many
local
manufacturing enterprises. Principles for Industrial Development 4. Industry should be diligently sought out and
1. The export of goods and services should be
the opportunities that exist for industry in
encouraged to develop a stable, healthy and
Edmonton should be made known without
grolAting economy. Regional and national markets should be sought for goods produced
promiscuous subsidization or the offering of other financial incentives.
locally.
5. The City should particularly encourage those
2. The strength of the local industrial sector is dependent on the provision of a number of
industries that:
factors, which form part of the "inputs" (land,
- broaden and diversify the economic base
labor, capital) of the firm. The City should
- utilize the local market, thereby reducing
ensure the provision of:
imports to the area - fortify the City against severe cyclical and
(a)An adequate Transportation System -
seasonal fluctuations
Transportation facilities linking local in-
- have a high degree of employment stability
dustrial development with local, regional
- use or further process locally available raw
and national markets, with sources of
or semi-processed materials
raw materials and ancillary industry.
- provide employment opportunities for those people presently unable to find employment,
(b)Industrial Land - Sufficient land should
especially the handicapped and the older
be available in industrial parks, estates or
segment of the labour force
other industrial areas at suitable locations
â&#x20AC;˘
in a variety of parcel sizes, with the
are
functionally
interdependent
and
financially independent
desired combination of services, utilities and transport facilities.
6. Historically, the location of industrial land has been greatly influenced by railroad facilities.
(c)Public Utilities and Services - In addition
Present day industrial land planning principles
to the labour, land, plant and raw
differ in that more emphasis is placed on:
materials, the cost of utility services can - the ready accessibility of the local and
be a significant portion of total costs of
regional highway network
manufacturing. The adequacy of the
7.7
- the effect that industry will have on adjacent
located as a result of construction of freeways
land uses
and other roadways, rapid transit facilities or
- the minimization of the time - distance of
urban renewal projects.
the employees' journey to work - suitable topographic characteristics requiring
14. The following pattern of industrial land use is
a minimum of grading or filling, good
suggested in applying the above principles:
drainage and stable soil conditions •
— industries which require large parcels of
the economical extension of utilities and
land and which may be obnoxious or
other services for industry
dangerous would locate in the industrial
- the minimization of grade level road and
expansion area east and northeast of
railroad crossings
Edmonton.
- the provision of industrial areas of a size
Prevailing winds will carry
obnoxious odors away from the City; outlets for industrial sewage will be downstream
adequate to permit related firms to be located adjacent to each other
from the City. In addition, the natural buffering of this industrial area by the
7. Encouragement should be given to the pro-
River Valley makes it particularly suitable
vision of planned high amenity industrial
for the suggested uses.
districts with attractively designed buildings and good standards of site development
— the prevailing wind direction which blows
including landscape treatment of visible yards
towards large areas of housing in this City and St. Albert and various proposals for
and parking areas.
greenbelt and major park development would suggest that development in the northwest
8. Effective screening of unsightly storage yards
area be limited to industry presenting no
should be provided.
pollution problems. 9. Greater emphasis should be given to the pro-
— appropriate land uses for vacant area adjacent
vision, in industrial areas, of buffers and
to existing establishments emitting odors
boulevards attractively maintained with trees,
should be chosen with care. At the same time, methods of minimizing the detrimental
shrubs and grass.
effects of obnoxious emissions by industries should be pursued with greater visour than
10. Industry should be separated from residential or public areas by the provision of buffer
in the past. No industry should be able to
zones. Where the application of buffering seems
sterilize large tracts of land around it because they produce obnoxious odors.
inappropriate, development could be graded
— aircraft or air transport oriented industry
by zoning from heavier to lighter types of
should have priority in developing land at
industry to non-industrial uses.
the Industrial Airport. 11. To prevent the encroachment on industrial land
— industry in the Central Area should be
by incompatible and restrictive non-industrial
discouraged unless it is directly tied to the
uses.
function of downtown and is otherwise not obnoxious or incompatible with other central uses.
12. To remove isolated pockets of industrial development if surrounded by other uses more appropriate for the area. Alternatively, obsolete
15. Zoning provisions for objective performance
housing and other undesirable uses in industrial
standards should be implemented. These should
areas should be cleared and the land
outline the maximum allowable limits of the
re-developed for industrial or related uses.
following objectionable or dangerous conditions: noise, smoke, dust and other particulate
13. The City should have in reserve a number of
matter, odor, gas (toxic and non-toxic), glare,
parcels of industrial land which could be made
waste, humidity, electromagnetic interference
available, at reasonable cost, to industry dis-
and radiation.
7.8
• • • • • • • • • • • • • • • • • • • • •
16. Industrial research regarding the opportunities
erated, industrially oriented research and
for new industries or the expansion of existing
development laboratories. Such a facility would
establishment within the Edmonton area and locally of of export possibilities the
as computers by experts in an increased number
manufactured goods should be undertaken.
of scientific and technical fields. The industrial
permit contact and joint use of facilities such
Analyses of the needs of industry (land, labour,
research park should be located on an attractive
utilities and other services) would also be part
site which is easily accessible to existing facilities
of the program to encourage industrial develop-
such as the University of Alberta and the
ment.
Alberta Research Council.
17. To enhance Edmonton's position in western
18. Joint railway service must be provided to all
Canada as an industrial centre and to enable
new industrial areas wherever it is physically
the present and proposed industries in the City
possible to do so and only those areas treated
to adequately develop and remain competitive, plans should be formulated for an industrial
by the railway companies as being within the
research park composed of independently op-
industrial uses.
interswitching limits should be developed for
7.9
Chapter VIII
PARKS AND RECREATION
INTRODUCTION
an additional 3,200 acres of open space will be acquired by 1981, of which 2,100 acres will be located in the
Land for recreation is vitally needed for the
River Valley. Thus Edmonton should have 12.1 acres of
physical and mental well-being of all the people living
open space per 1,000 population in 1981. In order to
in urban communities. The demand for parkland for
achieve this high standard, a firm and consistent
both active and passive recreation is steadily increasing
policy of land acquisitionâ&#x20AC;˘will be necessary in the River
while vacant land suitable for recreational purposes is
Valley as well as in old and new neighbourhoods.
rapidly becoming consumed by other types of urban development. The growing need for park and recreation
Parkland and recreational facilities should be
facilities originates from a number of factors. An
distributed throughout the City in accordance with the
advancing technology resulting in shorter working days
distribution of population so that the greatest number
and longer vacations has led to an increase in leisure
of people may benefit. Parks and recreational areas
time. The automobile is increasingly being used for
should be located where they will be most convenient to
personal transportation and a greatly improved local, district and regional highway system has enabled people
developments shall not be allowed to locate on
to travel further in search of recreational areas. More
municipally owned parkland. However, a privately
the people who are to use them. Privately owned
and more older people are seeking ways to occupy their
financed public recreational facility could be allowed
free time, thus creating a demand for recreational
where a concession or lease arrangement will guarantee
facilities suited to their particular needs. Finally, out-
appropriate standards of development and operation and
door recreation is becoming increasingly popular to
provide access to the public.
people of all ages. Three broad classifications of recreational areas Adequate safeguards, therefore, must be taken to
may be made on a geographic basis: the City proper, the
ensure that open space is available in sufficient reserves
immediate surrounding sub-regional area within a fifty
and in a variety of locations to meet the future needs of
mile radius of the City and the regional district in excess
the population. Of special concern are high and medium
of fifty miles. The most intensive recreational develop-
density apartment districts where heavy demands are
ment takes place within the City limits in close proximity
placed on existing parkland facilities.
to the urban population concentrations. The immediate district around the City permits use of access for day
In 1965, the combined acreage of all City parks,
and evening use by City residents, while regional facilities are orientated to physical features, such as
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
lakes, rivers and mountains at greater distances and serve both Albertans and visiting tourists.
developments, cemeteries, parkland privately leased from the City, traffic islands and buffer strips are added to the
Objectives
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
1. To provide parks for adequate active and
Association minimum standard of 10 acres per 1,000
facilities based on an approved Master Plan to
population. Edmonton, however, has an enviable ratio of 12.9 acres of public parkland per 1,000 persons. This
meet the requirements of a balanced year round
passive recreational purposes and associated
program designed to serve every segment of
is due, in part, to the large acreage of parkland in the
Edmonton's population. A Parks Master Plan
North Saskatchewan River Valley. It is estimated that
should be formulated as quickly as possible.
8.1
2. To ensure that the development, operation and
related to pertinent local conditions such as
use of all parks and recreational facilities for
topography, proximity to the River Valley,
public use shall be properly planned, designed,
character and age of the community, socio-
constructed, operated and administered, and
economic characteristics of the residents and
the Parks and Recreation Bylaw be regularly
the location of existing facilities.
reviewed to assist in achieving these purposes. 3. Recreational facilities should be planned and 3. To guarantee the retention of existing open
allocated to serve all age groups on the following
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.
design basis: (a)
Neighbourhood
level
(3000 - 5000
population) 4. To provide parks and recreational facilities in locations which are most convenient to the greatest number of people and locating them as
District level
(b) (c)
City level (entire urban population)
(d)
Regional level
near as possible to schools and proposed 4. Where possible, land for playfields and schools
community centres.
should be planned as one unit to provide for more economical development and practical
5. To co-operate with other bodies in the field of
maintenance of combined facilities. This plan-
parks and recreation and stimulate appreciation
ning approach should be undertaken in
of the value of open space in the urban
preference to the separate provision of parks,
environment and the beautification of this
playfields and schools on a neighbourhood,
environment.
community and district basis.
Principles
5. Park design and its subsequent implementation
1. Until such time as a Parks Master Plan is available, interim planning for parks should be
should provide for proper programming related to use and demand, the adequate provision and
guided by the minimum standards for the
effective utilization of space, convenience and
development of active and passive recreation
safety to users of the park, ease of park super-
areas recommended in "Report on Active and Passive Recreation, Park and Open Space
vision, economy in construction and maintenance, aesthetically pleasing environment,
Facilities within the City," 1955. The Parks
adequate accessibility for users of the park and
Master Plan should outline minimum develop-
utilization of all desirable natural features.
ment standards and refer to a staging and sequence of development program to outline in
BASIC COMPONENTS OF A COMPREHENSIVE AND BALANCED PARK AND RECREATION PROGRAM
detail the areas for acquisition and development. Emphasis should be given to an analysis of those neighbourhoods and communities where severe
Playlot or Block Playground
space shortages presently exist. A standard c,r "so many" or "x" acres of open space per
FUNCTION: The playlot is a small area intended
thousand population is misleading if some
primarily for use by preschoolers. The provision of these
neighbourhoods are lacking in parks and recre-
small recreational lots must be justified by special
ational facilities. Local demands for parks and
survey as many areas do not require this facility and
recreational facilities may change as the structure and composition of the neigh-
encountered. Mothers of small children wish to keep
high maintenance costs and supervisory problems are
bourhoods may change, and it will be necessary
them in sight from home for safety reasons; this factor
that the Parks Master Plan be regularly reviewed.
discourages sufficient use of small playlots to justify
Ideally, this should occur concurrently with the
their initial cost in many cases.
review of the General Plan.
LOCATION: Playlots should be carefully sited to provide easy and safe access.
2. The manner in which park lands are determined
SIZE:
and allocated in specific districts must be
8.2
The overall standard for the provision of
• • • • • • • • • • • • • • • • • • •
/ -
Parkland facilities are also proposed for the Southeast Development and B.A.C.M. areas but the type of facilities and locations will depend upon the completion of outline plans for these 1
• • • •• • • •
areas.
71
--
• 0 /0'
-
,
•
ol
_
_
• • •
• •
•
• • •
•
• • •
•
•
i
• I
•
KEY R iver Valley Parkland
o
•
Existing Neighbourhood Parks
o
Proposed Neighbourhood Parks
•
Existing District Facilities
o
Proposed District Facilities
Existing District Park
Proposed District Park !,:11
EDMONTON GENERAL PLAN
PARKS AND RECREATION PLAN PARKS & RECREATION
DWG.
1 CHAPTER VIII
land for playlots, neighbourhood playgrounds and neigh-
comfort stations, picnicking areas and refreshment
bourhood parks is 1.5 acres per 1,000 population. In
booths. Borden and Coronation Parks have been planned
most instances, both playlots and playgrounds would
on this principle.
constitute a part of a larger park area to provide flexibility of function.
LOCATION: Serving a population of 40,000 to 60,000 people, district parks should be adjacent to
Neighbourhood Playground
major urban roadways and are best located adjacent to FUNCTION: Neighbourhood parks and play-
senior high schools to ensure efficient access for all. The
grounds are designed to serve the active and passive
provision of district parks is critically important in those
recreational requirements of the surrounding neighbour-
residential areas well removed from the North
hood. It should be noted that 'Community Leagues' are
Saskatchewan River Valley, e.g. the area north of 125th
in fact neighbourhood facilities and function as neigh-
Avenue.
bourhood recreational centres. The playground should operate as a centre for recreational programs, serving
SIZE:
school needs during the day and public activities during
District parks and athletic grounds are
provided at a ratio of 1.25 acres per 1,000 population
the weekend and evenings. Playlots, softball diamonds,
and vary in size according to the location and site.
game courts, wading pools, shaded areas and a neighbourhood centre are integral components of this type of
City Parks
facility. LOCATION: The open space should be centrally
FUNCTION: This type of park provides active
located within a one-half mile radius of all parts of the
and passive recreation for the entire urban population.
neighbourhood. The park is best located adjacent
Maximum use is promoted by placing these facilities in
to an elementary school and utilizes any physical
wooded locations adjacent to prominent physical
features that exist, i.e. ravine or wooded land. Proximity
features such as creeks and rivers. As in a district park,
to major traffic arteries should be avoided to afford the
physical improvements, which would not harm the
maximum level of pedestrain safety possible.
natural character of the park should be constructed. City parks provide plenty of space for development of
SIZE: The combined school and park area is 14
specialized facilities such as boating docks, golf courses,
acres in size. Total neighbourhood requirements are
athletic fields, zoos, botanical gardens, natural museums
16.5 acres subject to local variances according to the
and aquariums.
conditions that prevail. Applying minimum standards, alternatives could be justified, such as providing a larger
LOCATION: Within The City of Edmonton, the
park or two smaller ones if an extremely high residential
North Saskatchewan River Valley affords an ideal
density prevails throughout the district. In addition to
opportunity for development of scenic city parks within
parks located adjacent to schools, small amenity parks
its wooded confines. Mayfair Park is a fine example of a
are suitable in more remote areas of the neighbourhood
city park which could be developed to contain many
but should not be used in the calculation of land
additional specialized facilities.
requirements. SIZE: City parks and natural preserve areas are provided at a ratio of 12 acres per 1,000 population.
District Park
There is no specific requirement in size. FUNCTION: This type of park provides a generous portion of open space for active and passive
Regional Parks
recreation in an urban environment. If possible, areas with natural features such as rolling topography and
FUNCTION: Regional parks are required to pro-
natural wooded areas should be used in order to
vide the metropolitan population with a variety of
stimulate public use and enjoyment. The type of
facilities in a setting not available within the developed
improvements made by the City will depend on existing
urban areas. These natural wooded spacious areas would
landscape amenities and would include trails, roadways,
be developed to provide camping, picnic, playing field,
8.4
• •• •• •• •• •
• • • • • • • • • •
permitted only on an individually selected basis
swimming and boating facilities for the summer months, with skating, tobogganing, skiing, sleigh riding and
in accordance with policies of the General Plan
skidoo facilities in the winter.
and Parks and Recreation Master Plan. 2. No development should be permitted in the
LOCATION: Within a one-half to one-hour drive
River Valley and ravine system or on or near the
of the major centre in an area with suitable topography.
top of the banks of this system that will mar
Sites on the Edmonton River Valley such as Big Island,
the natural configuration and appearance of
are ideal.
these features. A more precise definition of the limitations on development in and in the
SIZE:
Regional parks can vary in size from 100
vicinity of the River Valley and ravine system
to 1000 acres.
should be forthcoming in the Parks and
Other Regional Facilities
use control bylaws.
Recreation Master Plan and in the City's land
A regional recreational system is not complete
3. The study of a phased acquisition of existing
without scenic drives, swimming areas in a natural
incompatible developments within the River
setting, boating areas, lake resorts, bridle paths and
Valley should be initiated and included within a
foot paths and golf courses. Smaller regional parks with specialized facilities and singular attractions could be
long-range capital budgeting program.
established if the acreage required for a major regional
4. Where parkland is essential for the location of
park is not always available.
transportation facilities such as freeways and expressways, every effort should be made,
THE RIVER VALLEY
through alternative design proposals, to minimize effective loss of parkland. A cost for the
The North Saskatchewan River Valley, constituting Edmonton's most outstanding physical feature, in-
parkland loss should be established and budgets
fluences every aspect of urban growth and development.
for parkland acquisition should, subsequently,
Firm policies are necessary to protect its natural beauty
be related to the value of land removed from
and utilize the unique advantages afforded by its
park use and to the value of residual parkland
presence.
which has been adversely affected by the roadway.
Objectives 5. A co-ordinated system of pedestrian trails and
1. To acquire for park and recreational use within
bridle paths should be planned and provided
practical limits all those portions of the River
along the River Valley providing safe and
Valley and its ravine system not presently under
scenic recreational travel routes for public use.
public ownership to ensure future use by the general public.
6. In all new residential areas abutting the River Valley and ravine system, the design of the sub-
2. To protect the use of the River Valley by
division should provide for the separation of
developing within its boundaries, community,
housing or other development from the River
district and city park and recreational facilities
Valley or ravines by a public roadway except
whenever possible to do so.
in limited instances where engineering circumstances or special planning considerations war-
3. To initiate and maintain effective conservation
rant the introduction of urban development.
practices to ensure the preservation of the
In these instances a sufficiently broad public
natural foliage throughout the River Valley
upland area shall be provided to effectively
and ravine system.
prevent encroachment into the River Valley or ravines in order to preserve the natural ameni-
Principles
ties and maintain public access to the system 1. The River Valley should be developed for
for as many people as possible. This public
public recreational uses. Special uses may be
upland area should have a minimum average
8:5
April, 1973
width of twenty-five feet from the topographic
7. There should be close co-ordination and integra-
top of the bank, but will vary in width accord-
tion of City and regional planning policies to
ing to the nature of the terrain and local
ensure future park and recreational use of the
requirements as reflected in the design of the
River Valley in the Metropolitan Area.
subdivision.
April, 1973
8.6
• • • • • • • • • • • • • • • • • • •
Chapter IX
PUBLIC AND SEMI-PUBLIC USES
INTRODUCTION
the 9.6 percent average for a number of American cities of similar size.
The proper functioning of governments and the effective provision of essential public services is de-
General Objectives
pendent upon the location and amount of public facilities provided and their co-ordination with other
1. To provide suitable sites of adequate size for all forms of public and semi-public uses so that
land uses in the City. Perhaps no single element of the General Plan is more important to the quality of
they may render the most economical and
Edmonton's environment than the provision of adequate
effective service.
community facilities. Home buying decisions often hinge on how well the community is served by schools,
2. To encourage the development of public build-
churches, libraries and open space.
ings of superior architectural design within attractive settings to reflect the dignity and
Through the course of time, changes in urban
importance of their role in the community.
cultural and social mores can require changes in the number and type of public services provided. Contemporary society increasingly demands higher standards
General Principles
and broader ranges of public services. Planning and
1. The public or semi-public building should be
providing these public facilities also requires
properly related to the area it is to serve, and to
co-ordinating related public uses for maximum benefit,
associated functions.
accommodating major institutional uses with particular site requirements and using public buildings as a
2. Major public buildings which serve the entire
stimulant to private development. Planning these
City are best located centrally, with the
facilities is primarily the task of school boards, depart-
consequent advantages of convenience to the
ments of The City of Edmonton and senior governmental
public, good access and the ease of transacting
bodies.
various types of essential business in a central position of prestige.
As the Capital City of Alberta, Edmonton experiences a greater demand for public buildings and uses than elsewhere in the Province. The Federal,
3. Public facilities which serve the neighbourhood,
Provincial and Civic Governments and major land users
community or district should be located
such as the University of Alberta will continue to
centrally or in the most accessible position to
generate demands for additional buildings and land as
the area served.
the Province increases in population and wealth. In addition, the vast region around Edmonton creates a
4. Future land and building needs of all govern-
need for many forms of public services not available
ment agencies should be related to the land use
elsewhere.
plan and the objectives of the General Plan to safeguard adequate space in an economical and
In 1961, 12.7 percent of the developed area of the
orderly manner.
City was allocated to public uses and this percentage is expected to remain relatively constant during the Plan
5. The design of public buildings should be of the
period. In comparison, this figure is slightly higher than
highest standard.
9.1
6. Public uses with high traffic generating
demolished and replaced by new accommodation. The
capacities should be readily accessible from
expansion of the Public School Board Administration
major thoroughfares and transit facilities.
Building, provision of an Instructional Materials Centre, a Central Library Service Centre, a Bureau of Child
7. Due to the need for co-ordination in planning
Study and the replacement of Maintenance Shops are
for public uses, a public facilities plan, which
also anticipated. Additional requirements may occur if
would be a detailed statement of public policy
unusual growth is experienced or if changes in the
for the maintenance, expansion and develop-
educational program, taxation or grant policies should
ment of public facilities, should be prepared
occur. It is anticipated that Separate School enrollment
and adopted as part of the General Plan.
increases will require approximately 450 additional
Encompassing such areas as schools, libraries,
classrooms by 1981.
police and fire facilities, the information would be of value in the subsequent preparation of
Preliminary school plans are submitted to the
long range capital budgets by The City of
School Buildings Board which considers the plans
Edmonton.
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
EDUCATIONAL FACILITIES
construction, additional to what is approved, must be
Schools
paid for by the School Board. Every effort should be made to broaden the scope of the Foundation Program
The number of children reaching school age and
Fund to recognize rising building costs, varying regional
the retention rate in schools is expected to increase
conditions and the Edmonton School operation. A
substantially during the Plan period, with increasingly
money bylaw is prepared covering the school expenditure
heavy demands upon the provision of schools in both
which must be approved by the Local Authorities
existing and proposed neighbourhoods.
Board. Final building plans, specifications and financing arrangements must be approved by the Alberta Depart-
Public and Separate School enrollments have
ment of Education. The School Boards must adhere to
shown an average annual incremental increase of 6.8
the Regulations of the Province of Alberta School
percent and 10.6 percent respectively. In the 1965-66 term 64,541 students were enrolled in the Public
Building Act, and are responsible for determining what is adequate for the students in the form of new
School System, whereas 23,575 students were enrolled in the Separate School System. In recent years, Separate
buildings, space or equipment and new educational and maintenance programs.
School enrollments have tended to increase their percentage of the total school population by an average
Principles
annual amount of 0.6 percent. If this trend continues,
1. School facilities should be constructed on the
then by 1981 only 60 to 65 percent of the total school population will be enrolled in Public Schools, as
basis of sound population projections that will
compared to 73.3 percent in 1965. It is not yet known
determine future school age children and their
precisely what impact this will have on subdivision
distribution. Such projections should be com-
design although some changes will undoubtedly be
pleted sufficiently early to allow for adequate
required. In 1965-66, 23.7 percent of the total
planning, financing and construction. Due regard
population was enrolled in Edmonton schools, and by
should be paid to the program of residential
1981 the figure is expected to increase to over 25
expansion and the overall policies of the
percent, exclusive of Alberta College and special school
General Plan. Other important factors include:
enrollments.
the availability of vacant space in existing schools; the feasibility of transporting children
Public School building plans include an additional
by bus to these schools; and changes in the
45 elementary schools with 12 classes each, 11 junior
educational organization or curriculum which
high schools with 24 classes each, 5 senior high schools
may require the construction of specialized new
with 36 classes and 4 new trades and services high
schools or temporary use of old schools or
schools. In addition, it is expected that about 12
additions to accommodate the teaching of
existing obsolete schools in the inner areas will be
certain courses in the City.
9.2
• • • • • • • • • • • • • • • • • • • • • •
should be accessible to major arteries and public
2. Serious consideration should be given to the
transportation.
construction of two-storey structures so as to preserve the maximum amount of open space
12. Where school boundaries between Separate and
for recreational activity.
â&#x20AC;˘
Public School Systems coincide at the high school level, efforts should be made to locate
3. School, residential and park planning should be undertaken jointly.
the schools on the same general site.
Vocational Schools, Trade Schools, Technical Institutions
4. Portable schools should be provided in areas growing more rapidly than accommodation can be provided. However, they should be of
Vocational and trade schools are specialized senior
temporary nature and should only offer relief
public schools and site requirements for them coincide
pending completion of planned accommodation.
with senior public school requirements. Vocational schools are generally planned to serve three or more
5. When more than one neighbourhood or school
senior school areas.
tributary area is under construction, then one school to serve the interim school population
The Edmonton Public School Board presently
should be built rather than one for each
operates three vocational high schools and expects to
neighbourhood fragment until neighbourhood
add four more by 1981. These schools, financed almost
growth justifies more schools.
wholly by Federal grants, accommodate those students not interested in or not able to complete the high school
6. Development of residential areas should, where possible, proceed neighbourhood by neigh-
matriculation program. The Separate School Board is currently expanding the one vocational school that it
bourhood to reduce the inconvenience and
presently maintains.
cost of bussing pupils to elementary schools. Construction of the first phase of the Northern 7. Development of residential areas should, where possible, proceed so that 3 or 4 neighbourhoods
Alberta Institute of Technology, located adjacent to the Edmonton Industrial Airport, was completed in 1963.
are completed to accommodate a junior high
In 1965, fall enrollment totalled approximately 1,800
school and, in a similar way, a group of
full-time students, plus 1,000 apprentices in training at
communities for a senior high school.
any one given time. A full-time enrollment of 8,000 is anticipated by 1978. With the possible development of a
8. Elementary schools should be planned to pro-
community college and additional apprentice and
vide 12-16 classrooms of 30-35 pupils each,
vocational training facilities in the City during the Plan
junior high schools 24 classrooms and senior
period it is anticipated that N.A.I.T. will specialize to a
high schools 36 classrooms. In general, these
greater extent in engineering technology with other
schools should serve one, three to four and six
subjects being taught at the new facilities.
to twelve neighbourhoods respectively. The maximum distance that pupils may be expected
The University of Alberta
to walk to schools of each level should not
Full-time student enrollment at the University of
exceed one-half mile, one and a half miles and
Alberta has been rising steadily as a percentage of the age
over one and a half miles respectively.
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.
9. Elementary schools should be located centrally
It may reach 18 percent for the Province by 1981.
to the population served.
Recent projections have indicated that there will be between 25,000 and 30,000 full-time students on campus
10. Elementary and junior high schools should be located in areas through which no major traffic
by 1975-76 and that the number of staff and students at
thoroughfares penetrate.
the total university complex including the health centre could number as many as 55,000 by this time.
11. Senior high school sites should be located conveniently to the neighbourhoods served and
Plans are presently being formulated for a second
9.3
university at St. Albert which will accommodate an
people (in addition to providing facilities for the
additional 5,000 students by 1974 with an ultimate
Metropolitan Area) and each branch library is to serve
student population of 20,000.
approximately 30,000, then one main library and nineteen branch libraries will be required to serve the
Resident student accommodation is expected to
1981 population. To be most efficient, library facilities
increase to 3,600 and, in addition, about 670 units of
should be located central to the area they are to serve
married students' housing to accommodate 2,500 persons
and on major thoroughfares or in shopping centres.
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
Auditorium, Museum, Art Gallery and Planetarium Edmonton's 2,731 seat Jubilee Auditorium is a
traffic congestion and an ever increasing parking problem
multi-purpose facility serving functions such as
in the area. To cope with these problems, studies are
symphony concerts, operas, stage presentations, movies,
presently under way to ensure better access to and from
banquets, meetings, displays and social gatherings.
the University and to determine the need for parking
Although it serves its intended functions quite
structures. Unless a major reduction in on-street traffic
adequately, it cannot attract or effectively accommodate
movement is effected, such as might be possible with
major convention or small theatrical productions.
rapid transit facilities, the present campus will have to be limited to perhaps 20,000 students and a second
Under construction presently, just west of the
university established in the City.
Central Area, is a Provincial Museum and Archives. The development of the University is under the
Plans are also under way for a public Art Gallery in the
jurisdiction of the Board of Governors who are appoint-
Civic Centre to be completed by the end of 1967. The
ed by the Lieutenant Governor-in Council pursuant to
close proximity of the Art Gallery and the Public
the University Act. Development at the University is,
Library could be the keystone for future development
therefore, the prerogative of the Province and the
of part of the Civic Centre as an arts centre. Located at
University.
the centre of the City, the Art Gallery and Library will be conveniently accessible to the entire urban area.
The University should prepare a comprehensive long-range University master plan outlining development
Canada's first public planetarium was built by the
proposals for the entire campus area, particularly the
City of Edmonton in 1959 at Coronation Park. The
area north of 87th Avenue east of 112th Street and the
Planetarium is operated by the City Parks and Recrea-
University Farm. This will have a marked effect on
tion Department with the assistance of the Edmonton
adjacent land use and would greatly assist the City in
Centre, Royal Astronomical Society of Canada.
preparing plans involving any scheme for Whyte Avenue Any additional sites for major public cultural
and the surrounding urban area as a whole.
buildings should be determined on the basis of interviews with administrative officials in charge of development
CULTURAL AND SPECTATOR SPORTS FACILITIES
programs for these facilities and their estimates of the
Library
expansion anticipated during the planning period.
The Edmonton Public Library is administered by
Sports Facilities
the Edmonton Public Library Board in accordance with the Provincial Library Act. By the end of 1966, the
The majority of Edmonton's public active and
Library will consist of the main Public Library, eight
spectator sports facilities are City owned and operated
branches and three bookmobiles. A new main Public
by the Parks and Recreation Department. The facilities
Library is currently under construction as part of the
should be located centrally to the population distribution
Civic Centre Plan. The three bookmobiles operating in
and should be directly accessible to public transit and
the City account for about 24 percent of the total
major traffic handling thoroughfares. Race tracks, fair
books in circulation, of which the principal patrons are
grounds and other large land users not requiring a
children. The bookmobiles generally serve areas of
central location should be located on fringes of built
recent development.
up areas, but near transit routes and major arterials. Proposals as of September, 1968 for a downtown sports,
Assuming that the main library serves 60,000
trade and convention centre include a 32,000 seat
9.4
• • • • • • • • •• • • • • • • • • • • •
covered football stadium which can be adapted to a
ment hospitals - the Royal Alexandra with 793 beds
12,000 seat hockey arena. The centre would also
and 155 bassinets, the General with 371 beds and 74
contain 100,000 square feet of trade display area, a
bassinets and the Misericordia with 326 beds and 60
theatre, auditorium, restaurant, meeting rooms and
bassinets - maintain their own schools of nursing.
offices. The proposed site, east of 97th Street, is Numerous convalescent and nursing homes,
adjacent to the C.N.R. tracks and future rapid transit route.
auxiliary hospitals and special care hospitals provide for long-term illnesses, treatment for tuberculosis and
CHURCHES
communicable diseases and care for veterans and the aged.
religious over 50 were there In 1963, denominations in Edmonton represented by 233 places
At the end of 1965, based on a population of
of worship. The seven major denominations maintained
371,265, Edmonton had 7.0 active treatment beds per thousand or 2,607 active beds and 675 chronic care beds
149 church sites.
for a ratio of 1.8 per 1,000 population. Using the desired The smaller denominations, with one or perhaps
standards of 8 active treatment beds and 2.5 chronic care
two places of worship throughout the City, are generally
beds per 1,000 population, and assuming a 1981
accommodated near the City Centre. However, major
metropolitan population of 695,000, the number of
denomination churches, in addition to maintaining
active treatment and chronic care beds desired will be
central area churches, require suitable land in developing
approximately 5,660 and 1,730 respectively. Decisions
suburban neighbourhoods.
with respect to the number and location of hospitals will largely be contingent on the desired size of new
One suburban church per 500 parishioners is
hospitals. Construction of a new Misericordia Hospital
considered reasonable. Or, alternatively, on the basis of
with 550 active treatment beds is currently underway
the number of churches serving the people presently,
near the western limits of the City. An extension to the
one suburban church site should be provided for every
General Hospital is nearing completion. If the additional
2,500 to 4,000 people. Based on neighbourhood design
new active treatment centres are to be the same size as
principles, churches would most appropriately be located
the City operated Royal Alexandra Hospital, then four
adjacent to a major arterial and within walking distance
more hospitals will be required. Akpropriate locations
of commercial or other off-street parking areas, to
for these hospitals, possibly in the northeast, northwest,
minimize traffic congestion on residential streets. In-
southeast and southwest (perhaps as an auxiliary to the
adequate provision of church sites has occasionally resulted, for example, in land previously designated for
University Hospital) should be reserved. New chronic care hospitals could be located on the same sites as the
residential development being allotted for church
new active treatment centres.
buildings.
Principles A seminar bringing together church officials and City planning personnel could be held to ensure that a
1. The planning for hospitals up to 1981 and beyond
sufficient number of church sites are properly designated
should consider the development of modern
in each subdivision.
medical practices and most modern and efficient
MEDICAL FACILITIES
and region.
medical facilities for the citizens of Edmonton
Hospitals
2. All hospital facilities in the City should be coordinated to avoid unnecessary duplication and
Presently the City of Edmonton has four active
to make maximum use of facilities.
treatment hospitals with a total of 2,607 beds and 439 bassinets. Of these, the largest active treatment centre
3. Hospital facilities should be functionally differen-
was the University Hospital with 1,117 beds and 150 bassinets. In addition, the University Hospital in con-
tiated to provide specific services for acute,
junction with the University of Alberta maintains a
chronic, convalescent, out-patient or rehabilitation
Medical Faculty, a Nursing School and a centre for
cases. The use of active treatment hospitals by
medical research. The three other existing active treat-
convalescents can be minimized by an efficient
9.5
1981.
4. Future hospital planning should anticipate additional use of hospital facilities due to
Principles
increasing use of comprehensive medical plans and insurance programs.
1. Fire stations should be provided in strategic locations of relatively high population density
5. The selection of new hospital sites should be
and directly adjacent to major streets for
made through the co-ordinated teamwork of
utmost accessibility, and most economical
Hospital Boards and City Departments, giving
service.
adequate consideration to: an equitable dis-
2. Fire stations should be located on the fringe of areas of high commercial value rather than
tribution of medical facilities throughout the City; freedom from noise, smoke, dust, odor
within them.
and fire hazards; adequate sunlight and ventiliation; provisions of spacious landscaped areas; and provision of building and employee
Police Stations
and visitor parking. The City Police Department, through the renovation and addition of training facilities to the former Civic 6. The need for nursing home care service should
Block has headquarter facilities adequate to handle
be determined and a plan developed to provide
expansion expected during the Plan period. One substation
the required nursing home sites.
is presently maintained in south Edmonton. As the City increases in size, the need for additional sub-stations could
7. A nursing home district should be limited to a maximum of three beds per
become evident.
1,000 of the
population of the district concerned.
About one policeman to 600 population is the proper ratio according to a police hazards' formula and on
Health Clinics The Edmonton Health District lias six regional
this basis, it is anticipated that the force will reach one thousand by 1981, almost double the 1966 figure of 580.
health clinics, each having a medical officer, a dental officer and from six to eleven nurses. Administered by
Cemeteries
the Local Board of Health, the clinics provide
Recent changes in Provincial legislation on the
immunization, infant and pre-school ancillary services,
subject of burials restrict the operation of cemeteries to
clinical maintenance to the dentally indigent and sanitary
municipalities and religious organizations. Based on land
inspections. On the basis of these functions, regional
presently held by the City and religious groups, reserves
clinics are adequate for 50,000 to 60,000 people giving
are adequate to beyond 1981.
a degree of decentralization to standard public health services. Four additional clinics are planned prior to
Railroad and Bus Terminals
1981, including mobile units to serve more isolated areas. These clinics are customarily located near major
Edmonton is served by three railroads, the Canadian
arteries or shopping centres where people regularly
National Railways, Canadian Pacific Railway and the
gravitate.
Northern Alberta Railways. The Canadian National and Canadian Pacific maintain passenger and freight depots
PUBLIC SERVICE FACILITIES
in the Central Area and the Northern Alberta Railway maintains terminal facilities on the northwestern outskirts
Fire Stations
of the City. Recently completed is a new modern C.N.R.
Fire stations are planned to serve an area of about
passenger terminal; renovations are planned to the C.P.R.
one mile in radius. In the Central Area, the area served is
passenger depot and new facilities for the N.A.R. are in
smaller because of the high property cost and density of
view.
development. However, these standards are flexible and will depend upon the size of the station. The Fire
A privately owned bus depot is located in central
Department presently maintains 12 stations, a drill
Edmonton out of which several buslines operate. New
school and garage for the maintenance of apparatus.
facilities should be planned for a transportation exchange
Eight additional stations are planned to meet the need by
point or terminal featuring a heliport, an exchange area
9.6
• • • • •
•
•
• • • • • • • • • • • • • • •
between local and express transit, taxi and customer
Branches, the Oil and Gas Conservation Board and
parking stalls, separated pedestrian and vehicular move-
Workmen's Compensation Board. Alberta Government
ment and more efficient entrance and exit ramps.
Telephones personnel, presently occupying several build-
MUNICIPAL BUILDINGS
structure to be built in the City centre. The Alberta
ings throughout the City, will locate in a major office Liquor Control Board maintains an office and ware-
The City Hall, located in the Civic Centre, houses
house and fourteen Alberta Liquor Stores throughout
offices of the City Administration. In addition, the City
the City.
maintains buildings under the Parks and Recreation and Engineering Departments; the Edmonton Industrial Air-
FEDERAL GOVERNMENT BUILDINGS
port; telephone exchanges under the City Telephone System and buildings housing the Transit System,
The main Federal Government office building is
Tourist Bureaus and utilities. Expansion to these facilities
located immediately north of the Provincial Government
will be related to the growth of the City and the
Centre, and other structures accommodating special Federal Government agencies such as the R.C.M.P.,
standards of service demanded by the public.
Post Office, defence establishments, Department of
PROVINCIAL GOVERNMENT BUILDINGS
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
Federal Government employment in Edmonton is
throughout the City that require careful planning with
expected to increase about 3 percent per annum during
regard to their location, traffic generation and site needs.
the next two decades. On this basis, there should be a
The more important offices are those of the Treasury
doubling of office accommodation by 1981.
9.7
Chapter X
CENTRAL AREA INTRODUCTION
— the City's greatest concentration of pedestrian and vehicular traffic; the focus of the transportation
The Central Area is the heart of the City. It is an
network.
area where the most conspicuous land use is that of retail business surpassed in importance only by the complex of
— an area with a combination of typical central uses,
business and government office services. The Central
such as civic, provincial and federal governmental
Area attracts functions that serve the Metropolitan
buildings, commercial and office uses, hotel and
Area and the region as a whole and those which require
convention facilities, wholesale outlets and older
considerable interpersonal contact.
housing and high-rise apartments. — an area that can be delineated by man-made and
Edmonton's Central Area may be defined more
topographical features (the C.N.R. yards to the north
precisely by the following characteristics:
and to a lesser extent tht older parts of the City
— the greatest intensity of urban development, the
around 97th Street to the east, the North
highest land values, the largest and tallest buildings
Saskatchewan River to the south and the Groat
and, conversely, less open space than elsewhere.
Ravine to the west).
DIAG. 1 — THE CENTRAL AREA.
EMI
CORE AREA CORE AREA EXPANSION
600
CENTRAL AREA CENTRAL AREA EXPANSION
wpm CENTRAL AREA BOUNDARY
10.1
o
PEAK PEDESTRIAN INTERSECTION
O
PEAK LAND VALUE INTERSECTION
an area that serves the everyday needs of the people
have on one another. These areas should be so
of the City and the specialized needs of the people
arranged as to create the minimum amount of
in the region and the Province.
conflict to circulation of pedestrians, vehicles and goods between them within the limitations imposed by existing situations and develop-
The Central Area contains a core where its general characteristics are most pronounced. Employ-
ments.
ment in this core is expected to increase substantially.
PRINCIPLES FOR THE CENTRAL AREA Careful planning of facilities for the Central Area
1. Internal Circulation and Access
is, therefore, very important in order that activities and attractive
Efficient,
functions may efficiently and effectively serve one
access to central
Edmonton should be maintained from the whole
another and the region.
of the Metropolitan Area. A most important means of stimulating and concentrating development in
•
GENERAL CENTRAL AREA OBJECTIVES
the downtown is through the provision of a 1. To maintain central Edmonton as an attractive
balanced transportation system consisting of public
communication and transportation centre where
transit (rail and vehicular), automobile, pedestrian
goods, services, ideas and opportunities may be
and parking facilities.
conveniently and efficiently exchanged with other local, provincial or national centres.
(a)
Priority for the use of the Central Area street system should be given to traffic
2. To encourage administrative, financial, government and business headquarters to locate within
travelling to and from the Central Area.
the Central Area in order that services, pro-
Through traffic not destined for the Area
fessional or non-professional may be performed
should use bypass routes.
effectively and efficiently with close proximity
(b)
to each other.
The Central Area street system should efficiently distribute traffic to destinations
3. To make central Edmonton a specialized
in the Central Area and should make it
entertainment, cultural, educational, restaurant
particularly convenient and accessible for
and hotel centre that will make a visit to the
people
Central Area more informative and enjoyable.
residential areas. (c)
4. To continue to make the Central Area attractive
nearby
high-density
Major access routes to the Central and Core Areas should lead from the corners
for people who work and live in it and patronize
of the bypass and distribution rings,
its basic functions by making available a wide
since these are the most efficient points of
variety of food, recreation, entertainment,
circulation and distribution.
personal services, medical and supporting activities.
(d)
Vehicles, goods and people should be carried as directly as possibe to multi-
5. To encourage central Edmonton to serve as an attractive
from
purpose terminals. These would serve as
high-density residential area for
persons requiring a Central Area residence
parking terminals and would distribute
location.
people and goods directly to internal circulation systems and thus to their
6. To develop Edmonton's Central Area as a
destinations.
unique, attractive and dynamic urban centre to (e)
function as a symbol of the City and the great Northwest by serving as the stage for City,
There should be three major categories of Central Area roadways.
regional and national political, cultural, religious (i) High capacity routes which bypass
and other noteworthy events.
the Central Area. 7. To assemble Central Area activities into (ii) Primary access and distributor
compact functional areas according to the
routes connected to the bypass
intensity of dependence that the activities
10.2
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EDMONTON GENERAL PLAN
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PROPOSED DOWNTOWN PEDESTRIAN CIRCULATION SYSTEM
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CENTRAL AREA CHAPTER X
system.
should be restricted to brief and urgent needs and is desirable within 600 feet of
OW Local service streets that provide
the destination. Long-term employee
direct access to buildings facilitating
parking should, wherever possible, be
vehicle parking, and pickup and
located within 1,000 to 1,500 feet of .major destinations and outside areas of
delivery of passengers and goods. (f)
A network of special pedestrian facilities
intense activity. Wherever possible, parking
should be provided to ensure that people
for executives and office patrons should
can walk freely and pleasantly throughout
be provided within or immediately adjacent to major office buildings. Parking
the Central Area.
for major residential buildings should be
The following features should be
included on the site.
considered: (k)
(i) Weather - protected pedestrian
Public mass transit and truck loading should be separated from private vehicular
walkways to integrate the core retail
and pedestrian movement.
area. (I)
(ii) Pedestrian malls and wider down-
To minimize congestion in the downtown, the use of mass transit should be en-
town sidewalks.
couraged. (iii) Pedestrian ways and arcades in the middle of major blocks.
2. Mass Transit
(iv) Multi-use pedestrian plazas.
Mass transit is vital to the successful develop-
In April, 1968 City Council accepted
ment and maintenance of a strong and viable
the principle of a downtown pedestrian
Central Area. The provisions of an underground
circulation system as a guide to the
rapid transit system with pedestrian connections
planning of pedestrian movement in
to major retail and office buildings is an important
this area. This system incorporates the
future consideration. Surface transit systems will
principles contained within this section
continue to operate on downtown streets and
and provides a basis for comfortable,
occasionally on special lanes and transit malls,
convenient and safe downtown cir-
but will ultimately play a supplementary role to
culation. The system is outlined on the
underground rapid transit.
amended version of Drawing 1, Chapter
(a)
X.
Transit operations in central Edmonton may include both rail and roadway transit by 1981.
(g)
Vehicular and pedestrian conflict should (b)
be minimized by providing grade separated
During the period prior to rapid transit,
pedestrian walkways such as skywalks
all practical steps should be taken to
and tunnels.
encourage the increased use of surface public transit in the Central Area since it
(h)
be given should traffic Pedestrian preference over vehicular traffic in centres
is an efficient method of conveying large numbers of people.
of heavy pedestrian movement. (c) (i)
Major parking concentrations should pro-
The Central Area, and particularly the core area, must be the focus of all mass
vide skywalks and tunnels for efficient
transit operations so as to provide
pedestrian movement between parking
maximum possible service.
facilities and nearby buildings.
(i)
The time limit for parking in the down-
3. Compactness
town is particularly important and should (a)
be provided according to the needs and destination of the driver. Short-term
The major activities of the Central Area should be compactly arranged in order to facilitate transit and vehicular circulation
shopper and business patron parking
10.4
• • • • •
• •• •
• • •• •• • • • • •• •
between various parts of the Area, to
pressive effects. Safety, a sense of order
permit development of workable plans for
and direction can be established through
parking and major streets and to promote
the following:
maximum ease of pedestrian movement
(i) Private businesses and government
between functionally related buildings. (b)
The various functional areas of central
should be encouraged to illuminate architecturally attractive buildings.
Edmonton perform diverse functions and
Special attention should be paid to
should continue to be arranged in such
night-time activity centres.
compact groups as the Government
(ii) A variety of street lighting may be
Centre, the Civic Centre and major retail
used to distinguish the different
and office areas.
types
of
streets.
If possible,
approach and internal circulation 4. Development Appropriate to the Central Area (a)
routes, major and local streets should be differentiated by the
Development locating in the Central Area should contribute effectively to the City
type of lighting. For example,
and the region. Activities and functions
streets in the Civic Centre could
which do not need a central location
be characterized by lighting fixtures,
should be discouraged from locating here.
differences in intensity, location and color.
(b)
Areas
around
and
within
central (iii) Street parking area and sidewalk
Edmonton that are not needed for key Central Area functions should be
lighting should be subdued within
strong supporting developed with activities such as centrally oriented apart-
safety
limits
in areas such as
Government and Civic Centres to obtain greater value and contrast
ments, motor hotels and special purpose
through lighting of building
offices.
exteriors, landscape features and sculpture.
5. Street Furniture
(iv) In areas bordered by commercial
Street lighting fixtures, hydrants, signals
shops, prominence should be given
and signs, telephone booths, waste containers,
to show window displays and their
benches, shrubs and trees, planting boxes and
lighting. Less reliance could then
similar features are the "furniture" of the street. (a)
be placed on direct lighting of
The appearance and function of street
streets, walkways, plaza surfaces
furniture should be considered as an
and building facades.
overall design problem. (b)
(e)
Individual objects, signs, etc. should be effective, tastefully and functionally plan-
ability to transmit information must be
ned as part of an overall composition thus
preserved. Certain signs should be given
eliminating a duplicating and cluttering
a greater degree of visual importance
effect. (c)
Effective use of signs is of special importance in the Central Area and their
than others. It is essential that "Stop
Where possible, street furniture should be
signs," directional signs and signal lights
integrated with buildings on adjacent
be readily visible along a street. It is of
land.
For
example,
fire hydrants, telephone booths, benches and street
commercial signs be seen from a moving
lighting fixtures could be incorporated
car.
lesser importance that "No Parking" or
into adjacent structures. (d)
6. Appearance and Symbolic Values
A skillfully designed system of lighting should be implemented to enhance central
(a)
Edmonton by giving dramatic and im-
Central Edmonton, as a symbol of the City, should be attractively designed in
10.5
detail as well as in terms of overall skyline
created so that views of the River
and visual arrangement so that a sense
Valley
of beauty, cohesion and order can be
pedestrians in the Central Area.
given to the Central Area and reinforced
enjoyed by
extend away from overlook points toward the downtown malls to
Pleasant appearance requires attention to the creation and proper location of a
provide visual and psychological
number of selected "land-mark" features,
connections with the River Valley.
including: tall buildings, plazas, statuary and other features; variety in building and
(iii) Buildings
in
the
River Valley
generally should be low to avoid
street design, grouping of buildings,
giving the impression' of reduced
heights, widths, forms, shapes and
depth and height in the Valley and
architectural detail. (c)
be
(ii) Landscaped plazas or malls should
as development takes place. (b)
can
to protect views of the bluff from the River level.
Entrance or "gateway" areas should be designed to provide a clear sense of approach, direction or destination to the
(e)
Structures, signs, sidewalks, open spaces,
Central Area. This would be obtained
pedestrian plazas and other features
through:
should be scaled to human requirements. Areas where large numbers of people
(i) The use of high design standards on
congregate will require larger plazas than
approach streets, including the
areas of little congregation.
generous use of landscaped median and boulevard areas.
7. Characterization
(ii) The establishment of wide setbacks
Edmonton's Central Area should be
of buildings along streets at entrance
developed as a unique and distinctive central area
points.
from central areas of other cities.
(iii) The creation of squares, plazas or (a)
parks, perhaps with special land-
Central Edmonton should keep in touch with the past by naming and erecting
scaping fountains, flags or sculpture
parks, buildings and sculptures in honor
at key entrance points.
of noteworthy pioneers of this district. Cultural values and the heritage of
(iv) Providing attractive public or semipublic buildings at entrance areas.
predecessors should be respected and
Historic or symbolic landmark
expressed through appropriate decoration,
structures could likewise be located
sculpture and other means.
here to serve as focal points of each
(b)
activity centre.
Structures of historic and architectural value should be noted and a policy established to insure their preservation.
(v) Sign control should be exercised and those that provide safety and (c)
directional information should be
The City's economic position with respect to the region, nation and the world
given special emphasis.
should (d)
Development
should
enhance
be assessed and displayed.
Evidence of Edmonton's transition from
and
fur-trading
centre to a leading
accentuate the main features of central
a
Edmonton, such as the North
agricultural centre and presently to the
Saskatchewan River Valley, the River
industrial and oil capital of Canada should
bluff and the Central Area skyline as
be made evident.
they are symbolic of the City. 8. Redevelopment (i) Sites or "overlooks" along the bluff (a)
should be protected and new ones
10.6
The quality of site design in downtown
• • • •
•• •• • ••
• • • • • • • • • • •
Central Area Plan.
Edmonton can be significantly improved through large scale commercial and
On the basis of this Plan, land uses can be
residential development. (b)
Open spaces, attractive pedestrian courts,
most effectively located to the benefit of orderly development in the Central Area. The following is
malls, vertical separation of people from
an outline of these functional areas together with
cars and greater compactness and
principles to be observed for each area:
integration
of related
activities are
(a)
possible through comprehensive design
Centre
techniques on a large scale. These
(i) The large scale highest density and
principles permit heavy concentration but
greatest compactness of develop-
without intolerable congestion.
ment
permitted anywhere in
Edmonton should be encouraged in
Building sizes, locations and heights,
(c)
Core, Retail and High Density Office
this district to ensure maximum
should be co-ordinated for greatest visual
opportunities for personal contact.
effect.
- parking should be designed as an integral part of building so that
Comprehensive redevelopment should call
(d)
for placing underground all utilities and
it can be associated with the
eliminating curb loading by providing consolidated loading and service facilities
destination of people; placed in the least valuable part of the
under or within a structure.
block; pooled to create larger,
Blighted and deteriorated areas within the
converted into storage areas if
Central Area should be placed under large
necessary.
more economic parking areas or (e)
scale redevelopment programs supported
pedestrian
by private financing and public renewal
facilities such
as
interior arcades, tunnels and
funds. If private capital is able to assemble
walkways horizontally connect-
land economically, it should be permitted
ing blocks at different levels
to do so. However, if land speculators
should be provided.
inhibit redevelopment, the City should play an active role in assembling land
vehicular access should be limited
through urban renewal schemes.
to one or two points so as to reduce vehicular and pedestrian conflicts.
9. Architectural Control
desirable building elements such
Special architectural control should be
as plazas, arcades, landscaped
exercised to enhance the quality of architectural
areas and entrances should be
design in the Central Area but in such a manner
located for a maximum aesthetic
as not to limit variety or imaginative design.
and functional effect. 10.
(ii) Maximum ease of pedestrian move-
Functional Areas
ment should be provided between
The Central Area can be divided into
this area and other functional areas,
functional areas as shown by the accompanying
such as the Government Centre
diagram.
and the Civic Centre. These functional areas are grouped and
(iii) The shopping core and high-density
distinguished by their basic activities such as
office area should be integrated.
retailing, government offices, business offices, entertainment, hotel services, civic centre, housing
the lower levels of office build-
and other activities. Each of these functional areas
ings should be designed for retail
contain smaller land use districts as shown on the
use.
10.7
•••••••••••••••••••••• / .;:;.3
i i i1111 1111111111111111111111111111111111 1,111111111111111111111111111111111111111111111111111111 11111111111111111111111'," '
-
I
I
i
KEY FREEWAY RIGHT OF WAY CORE RETAIL OFFICE RESIDENTIAL & SPEC. OFFICE CENTRAL RESIDENTIAL RESIDENTIAL & INSTITUTIONAL CENTRAL RESIDENTIAL RESERVE
EE3
CIVIC & GOVERNMENT CENTRES LOW DENSITY RESIDENTIAL GENERAL COMMERCIAL
ein
RIVER VALLEY
El v
UTILITIES INDUSTRIAL AREA WHOLESALE DISTRIBUTION
EZ21 1111111
WW1 PA.*.
DIAG.2 - CENTRAL AREA FUNCTIONAL USES
CNR STUDY AREA URBAN RENEWAL STUDY AREA
integrated development should
downtown activities and encourage their
be encouraged through co-
expansion.
ordinated design, large scale
(i) Sites in the Civic Centre should be
development, multi-purpose use
generally spacious with attractive
of site, key off-street parking
landscaping to provide a desirable
and loading sites and a system of
symbolic and aesthetic effect.
pedestrian ways tying the area (ii) Convenient and attractive weather
together.
protected connections (e.g. - tunnel clubs, entertainment facilities,
connecting
restaurants and convenient retail
parking garage to
Chancery Hall) should be provided
services and stores should be
between major building groups.
provided to encourage multi(iii) Good transit service is essential to adequately serve this concentrated
purpose use of the site. (b)
area of employment.
Civic Centre Edmonton's Civic Centre Plan combines
(iv) Conveniently located visitor parking
commercial
uses with the traditional
should be sufficient to meet
concept of
facing cultural and govern-
demands.
mental buildings onto an open central
(v) Good pedestrian connections should
square. The Civic Centre has deep roots
be provided between the Civic
in Edmonton's history and it has been a
Centre and the retail and office
City objective in one form or another for over half a century.
centre. (c)
Civic buildings will be maintained as the
Central Housing Area
dominant elements of the Plan and include the City Hall and extension, the
(i) The planning of the Central Housing
Public Library, the Art Gallery, the Police
Area and individual site develop-
Headquarters, the Magistrate's Court and
ments should fully exploit the
the City Telephones Building generally
locational and topographical site
located around a central park. The City
amenities of this area.
Hall holds the dominant position at the north end of the square facing the Public
(ii) Good pedestrian connections should
Library at the opposite end.
be provided between the Central Housing Area and the government
Commercial, governmental, cultural and
and retail employment centres.
residential buildings and public parks, malls and plazas are provided for balance,
(iii) Central Housing Area traffic and
variety and beauty. Senior government
circulation should not conflict with
buildings include the Land Titles Building,
downtown bound traffic, and should be developed accordingly. Separation
a Federal Post Office Terminal Building and a proposed Court House. Major office
of local and downtown traffic will
towers placed in the Centre are located to
help to preserve the capacity of
identify the heart of the City and the
major carriers and will help to
Civic Centre Area.
protect the residential character of
The Civic Centre is designed not only as a
this area.
convenient and pleasant place to live, work or visit but also as a place for
(iv) Adequate off-street parking (parti-
meeting, leisure and entertainment. The
cularly underground parking) should
Centre is to have beauty and dignity,
be provided with each development
giving form to the City and a richer life to
to protect and improve the
its citizens. It will strengthen the existing
amenities of this residential area.
10.9
density apartments and apartment hotels.
(v) High-rise apartments are appropriate to the central housing area but due
In addition to these major functions,
regard should be paid to the River
civic and cultural institutions, restaurants,
Valley contours and the desirability
limited convenience retail services and
of preserving dominance of the
hotel facilities should be allowed. Some
retail-office centre and the Civic
of the major principles to be observed in
Centre.
the development of this area are: (i) Special side yard regulations are
(vi) High standards of architectural and
required in order to:
landscape design are necessary to achieve a pleasing urban character.
— preserve the visual dominance of
Existing trees should be preserved
the Government centre and the
or planned for replacement, and
core area.
additional trees planted to soften the otherwise raw and cold expanse
— hold traffic generation in these
of concrete, pavement and masonry
areas to moderate levels (it will
walls.
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 bet-
— maintain an environment that
ween 106th and 109th Streets, 99th
will be attractive to apartment
Avenue and the River. The central
and special purpose office con-
element of the centre is the Legislative
struction.
Building. The Government plan must recognize the concepts of superblocks and
(ii) Adequate off-street parking should
boulevards in order to consolidate and
be provided, serving individual
integrate existing and future government
buildings
functions and buildings within the centre.
of buildings. Developers should pro-
The centre should be distinguishable from
vide underground or elevated
or
associated groups
the surrounding uses and other activities
parking structures, leaving open
in this area should be supplemental and
space for use by the inhabitants of
supporting to this primary function.
buildings.
(i) Development of the sites within
(iii) Buildings containing both residential
this area should be characterized by
and non-residential uses should not permit residential use on the main
attractively designed buildings,
floor except in the case of accom-
pleasant open spaces and extensive
modation primarily for transient
landscaping that will enhance the
use.
view of individual buildings and the Centre as a whole.
(f)
(ii) Building heights and designs should be moderated to preserve and, if
Wholesale Distribution Area In
this
area, wholesale sales and
distribution is the primary activity. Other
possible, enhance the dominance of
activities, such as printing, light
the Legislative Building.
manufacturing and processing, auto-
(iii) Good all-weather pedestrian con-
motive sales and repair, building materials,
nections should be provided within
supplies and others benefiting from and
the Government centre.
requiring close direct contact with the downtown should be permitted here.
(e)
Special Purpose Office Area
(i) Activities in this area should be
The major functions of this area are to
concentrated and prevented from
provide sites for office structures, high-
expanding beyond its present limits.
10.10
• • •• • •• •• • • • • • • • • • •
•• •
development with room for offstreet parking, building set-backs, landscaping and other features that will maintain pleasantness and provide a sense of approach into downtown Edmonton.
(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 lirilited and unsightly storage should be screened
(ii) Good pedestrian access should be provided from this area to the Civic Centre.
from street view. (g)
(h)
Motel and Special Purpose Office Area
Institutional-Housing Area This area contains major hospitals and related residential and office development. Secondary uses, including retail services
This is an area of old housing, relatively low density motel and hotel development, small special purpose offices,
for people working or living in the area should be permitted.
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.
(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.
(i) Buildings and site development in this area should be held to relatively low densities to:
(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.
â&#x20AC;&#x201D; preserve visual and physical dominance of the Civic Centre. â&#x20AC;&#x201D; assure adequate, spacious site
10.11
• • • • • • • • • • • • • • • • • • •
Chapter XI
URBAN RENEWAL INTRODUCTION involves both active private participation in home Urban renewal is the term used for any private
improvement and continuous programs of public works
or public action or combined action which renews,
improvements and maintenance of community facilities
repairs or protects the urban community from blight
on a neighbourhood basis to maintain and encourage
while providing the most desirable social, physical,
private investment throughout the district. Rehabilitation,
economic and visual results. Blight may be the
designed to raise general environmental standards of areas that do not require massive - clearance and re-
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
development, may involve the clearance of scattered
obsolescence of dwellings, overcrowding, lack of
services that contribute to satisfactory living and work-
pockets of blight, the provision of adequate community
adequate community facilities, faulty land use and
ing conditions and the elimination of undesirable
street patterns, air pollution and noise or the disrupting
nuisance factors. Adoption and implementation on a
effects of arterial transportation systems. These physical
comprehensive basis of a Housing Occupancy and
and economic conditions are compounded by social
Maintenance Bylaw will improve the physically sub-
problems of poor health, disease, juvenile delinquency
standard condition of the community. Redevelopment, being the most drastic and generally the most expensive
and low income. No part of the urban community is immune from blight.
of the three techniques involves clearance of buildings thus freeing the land for new development. Clearance
Municipal Responsibility
is only warranted when extreme conditions of obsolescence or incompatibility of land uses do not
As the City ages, municipal vigilance is increasingly
permit economic rehabilitation. Land use and
necessary to protect the older parts of the community
population changes effected by redevelopment would be
from becoming a financial burden. It is evident that
consistent with the policies of the General Plan.
blighted neighbourhoods require a disproportionately high share of municipal services while contributing minimally toward municipal tax revenue.
THE EDMONTON SITUATION
A balanced urban renewal program, under
In Edmonton there are no heavy concentrations of
municipal guidance and co-ordination, affords an
blighted property equivalent to those existing in many of
opportunity to both redevelop or rehabilitate existing
the older, more densely populated cities of North
blighted conditions and prevent the future occurrence
America. Nevertheless, the amount of overcrowded and
of deterioration. Such a program can also provide a
dilapidated housing in proportion to the total housing
physical and social environment specifically planned to
stock in Edmonton is greater than the average for all
meet modern standards.
Canadian cities exceeding 100,000 population. In 1963 and 1964, urban renewal studies were
Methods
undertaken within the context of the General Plan to
The urban renewal process involves three basic
examine the quality of housing stock in Edmonton and
techniques - conservation, rehabilitation and redevelop-
to seek appropriate methods of improving it. These
ment. Conservation is concerned with the maintenance
studies were undertaken by the City Planning
of minimum standards necessary to guarantee a
Department, under the terms of the National Housing
productive use of facilities during their normal life
Act (1954) with a grant administered by the Central
expectancy. Preservation, often confused with con-
Mortgage and Housing Corporation and with the
servation, is more directly concerned with prolonging
approval of the Minister of Municipal Affairs of the
use beyond the normal life expectancy. Conservation
Province of Alberta.
11.1
In conjunction with this study, a lot by lot
The survey (from a ten percent sample) revealed
survey of comparative housing conditions throughout
that a total of 2,476 dwellings are estimated to fall
the older districts shows that 4,143 residential dwellings
within this category, and a further 1,467 dwellings are
were seriously dilapidated. These buildings, representing
located in unfavourable residential environments.
six percent of the total housing stock (excluding
In Edmonton today, 32,700 people are in need of
dwellings in industrial areas) with an average assessed
better housing. This represents the total population in
value just over $2,000 each, are scattered throughout
dilapidated dwellings, substandard basement, attic and
the City. Their structural condition is such that they
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
are considered unsuitable for rehabilitation and should be replaced.
families are in need of decent homes either through the Eighty-six percent of the run-down buildings are
replacement or rehabilitation of existing dwellings.
occupied by only one family but a surprisingly high proportion (forty-five percent) is owned by absentee
The problem is most acute in the River Valley
landlords. The average family income (including the
where 40 percent of all buildings are seriously run-down
income of working wives, family allowances and room board contributions) is $3,336, as compared with and
and a further 41 percent are in need of repair and
$5,400 for all City families in the 1961 Dominion
4,500 people would benefit from better living
modernization. In the Alex Taylor-McCauley District, conditions. The inadequate size of residential structures
Census. One sixth of the heads of households are
in Jasper Place has contributed towards overcrowding in
pensioned and another sixth are unemployed, while
29 percent of all surveyed buildings (1,086) and in
twelve percent of all the families are on either Provincial
Strathcona (Garneau) 9 percent of the total population
or Municipal welfare assistance. But the most disturbing
occupy unfit basement rooms.
statistic is to be found in the large number of resident owners making high mortgage repayments: 564 house-
Excluding the demand for housing created by
holders (sixty-two percent of those repaying mortgages)
normal City growth, the urban renewal study results
make monthly payments in excess of $80, in addition
indicate that a total of 12,839 dwellings will be needed
to modest property taxes.
to complement the urban renewal program based on the following components:
For the purpose of the Dominion Census, a
— replace run-down buildings
crowded dwelling is defined as one in which the number of persons exceed the number of habitable rooms.
— relieve overcrowding
4,574
1 426
However, having regard to the high proportion of — replace substandard basement and attic
buildings occupied by only one family, there is need to
accommodation
make a distinction, in terms of hardship, between
2,476
— replace residential uses in industrial
overcrowded multiple family dwellings and single family dwellings. This distinction warrants an adjusted standard,
areas
whereby single family dwellings are deemed to be over-
1,547
— replace houses to be cleared other than
crowded when the average number of persons per
in industrial areas
bedroom exceeds two. By this standard, 3,751 residential
— implement neighbourhood improvement . . .
buildings within the study area are rated as overcrowded, excluding those in poor structural condition, and an
— clearance for public housing sites
average of 5.0 persons per household occupy 4.6 rooms (including full basements) compared with City-wide
— clearance for M.E.T.S. proposals
averages of 3.6 persons per 5.0 rooms.
— university campus expansion
807 300 118 1,302 289
TOTAL DWELLINGS TO BE REPLACED 12,839
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
54,340 citizens live in run-down and / or overcrowded conditions but not all families in overcrowded buildings
occupancy now being used permanently as living
have to be rehoused to resolve the problem, i.e., the
quarters, would fail to meet minimum standards of
relocation of one family from a shared dwelling would leave
health and safety.
ample roan for the other.
11.2
•• •• •• •• •• •
• • • • • • • • • •
Federal Government. The rent scales are usually set by
NEIGHBOURHOOD IMPROVEMENT
an independent housing commission appointed by the An integrated and co-ordinated approach to
Provincial Government. Rent is levied in two ways. The
alleviate blighted and deteriorated areas within the City
rates charged are based on a full recovery principle
limits is being followed, employing conservation, re-
whereby sufficient payments are charged to amortize
habilitation and redevelopment techniques. Since housing conditions in Edmonton do not warrant the severe
the project and recover maintenance costs; a subsidized rental plan is also used whereby the levy is related to
upheaval that total redevelopment would create,
the tenant's ability to pay.
"neighbourhood improvement" is proposed as the spearhead of the urban renewal program for older residential
Forms of Public Housing
districts of the City. 1. The Large Project - Located on five acres or Neighbourhood improvement will consist of the
more, the large project is a planned development
provision and enforcement of a Housing Occupancy and Maintenance Bylaw, the enforcement of City bylaws
comprising a variety of accommodation such as terraced dwellings, patio housing and apartments designed in a manner to provide the
pertaining to health and safety, the provision of
optimum residential amenities and pleasing
incentives such as tax exemptions and loans to stimulate
aesthetic appearance. The project development
home improvement, the replacement of pockets of
provides the maximum number of dwelling units
deteriorated and worn-out housing, the improvement of
at minimum cost but it can create social
schools and parks and using the National Housing Act to
problems by segregating the tenants from host
gain financial assistance for home improvements and
community.
refinancing.
2. The Semi-Integrated Project - This project is a more sophisticated form of public housing and
PUBLIC HOUSING
would be used in conjunction with the neighA primary goal of government is the responsibility
bourhood improvement programs. This form of
of ensuring that every citizen is afforded the opportunity
public housing replaces existing pockets of
to have a decent place in which to live. Some families and individuals, through reasons of disability, fixed
dilapidated buildings throughout a neighbourhood. Patio housing or small groups of terraced
income levels or lack of economic capacity, are presently
dwellings are most suitable for this purpose and
forced to depend upon substandard accommodations
would not cause conflict with the established character of the district or reduce the property
located in the older blighted residential districts of the City. For these reasons public housing is necessary to
value in the immediate vicinity. Higher con-
provide safe decent accommodation at reasonable rent
struction costs could be expected but the
levels. In response to this critical need for adequate
building becomes an integral and accepted part
low-cost accommodation the City of Edmonton, in
of the neighbourhood. It is this form of public
conjunction with the Provincial and Federal Govern-
housing that is considered most suitable for the
ments, has initiated a public housing program. Under the
City of Edmonton.
auspices of the Edmonton Community Housing Organization (E.C.H.0.), a City of Edmonton agency, a
3. Conversion of Suitable Dwellings - The con-
program is being implemented to â&#x20AC;˘provide housing to
version of suitable dwellings into public housing
citizens of low-income in the City.
It should be
units has considerable
recognized, however, that it is the responsibility of the
merit where a
predominantly residential area is in transition
senior levels of government to provide the financial
to another land use. By renovating the interiors
backing for this program as it is beyond the City's
for rental purposes, the resulting effect is a
present financial capacity to implement the program
reduction of the amount of substandard housing
with its own limited resources.
in Edmonton without removing low rent accommodation at the same time. The conversion of
The National Housing Act provides for financing
such dwellings also helps to avoid the stigma
of public housing through both grants and loans which
sometimes attached to public housing since
are bestowed after applications are made by the
there is little external difference between public
municipality through the Provincial Government to the
and private homes.
11.3
• •
THE DISTRICT PLAN PROGRAM
rents that they can afford to pay according to
The withdrawal of the Federal Government from
their economic ability.
urban renewal has necessitated a re-evaluation of the City's problems and needs in this area. Needless to say,
Principles of Urban Renewal
the problems associated with the older areas of the City have not disappeared along with the Federal funds.
1. Urban renewal schemes afford the opportunity
In response to the need for studies of older areas a
for older districts to be rejuvenated according
district plan process has been evolved so that problems
to the development policies of the General
associated with older areas can be studied at a more
Plan, and contribute to the economic stability of the City.
refined and intimate scale. Thus the district plan process is simply another type of urban renewal program but is
2. Urban renewal must be a continuous process to
one not dependent on senior government funds.
combat and prevent the premature occurrence of new outbreaks of obsolescence. With the
However, a public rehabilitation program would benefit greatly from Federal participation. Fortunately, the
use of all proven techniques, vigorous programs
district plan approach involving conservation and rehabilitation is much more appropriate in the City of
are necessary to encourage rehabilitation and
Edmonton as opposed to massive redevelopment
conservation.
programs.
3. Projects must be co-ordinated and correlated with long-range city-wide planning (for example,
Objectives of Urban Renewal
transportation and parks) to ensure orderly city growth and redevelopment.
1. To eliminate factors contributing to urban blight in industrial, commercial and residential
4. Public support must be actively solicited for
districts within the City and to prevent
urban renewal because its ultimate success is
recurrence of these factors; to provide, by
dependent upon active and co-operative public
means of a comprehensive and balanced urban
participation.
renewal program, an attractive, healthy and 5. A balanced program of public and private action must be initiated by urban renewal planners to
stimulating urban environment conducive to the physical, social and economic well-being of its
provide residential accommodation at acceptable
habitants.
minimum standards, to promote neighbourhood 2. To provide the means whereby all citizens of
characteristics necessary for the health, safety
the community, and specifically those affected
and welfare of the inhabitants and to regenerate
by urban renewal schemes, have access to
interest in older districts to retain their useful
decent, safe and sanitary accommodation at
life as part of the urban community.
At the May 18, 1971 meeting of City Council, prior to the adoption of the General Plan Bylaw, the following motion was passed: "That the Transportation Chapter be held in abeyance for further study."
11.4
•• •
• • •
• • • • • • • • • • • • • •
Chapter XII
TRANSPORTATION
transportation system;
INTRODUCTION
4. the approach to transportation planning must ensure that the public at large is continually informed and involved in the process of transportation planning and especially in the preparation and evaluation of alternative plans.
Of all the components of an urban area the transportation system has the greatest influence on development. On the one hand, 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 while, in turn, the make-up of the transportation system is predicated on the nature and extent of existing and proposed developments. 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.
The Transportation Chapter has accordingly been prepared within this context. The purpose of the Chapter is to establish the basic objectives, conceptual framework and general terms of reference for the preparation and evaluation of the various plans and proposals required for Edmonton's transportation system. The Chapter envisages this approach as a series of alternative forms of urban growth which are implicit in the transportation alternatives, and which illustratewhat is technically and financially feasible.
Recognizing that both the character of the City and the nature of transportation technology have changed significantly since the completion of the original Metropolitan Edmonton Transportation Study in 1963 and will continue to change, the City of Edmonton initiated a program to substantially revise both its approach to and concept of transportation planning. This process culminated in the preparation of a General Transportation Plan Position Paper in 1972 which was widely circulated to bring forth discussion on this important subject, following which a series of public hearings was held. At the same time, the Paper was extensively reviewed by the Civic Administration. The results of these efforts led to the following conclusions:
The citizen participation principles within this process will be essentially the same as that followed for any major planning study and are outlined in detail in the Implementation Chapter. Of particular Importance in the resulting program will be the need to balance different viewpoints and interests throughout the City.
OVERALL REQUIREMENTS FOR THE TRANSPORTATION SYSTEM FOR EDMONTON
1. the City's transportation plans and programs must be thoroughly reviewed and restated;
The transportation of persons, goods and services within a city is a major aspect of urban life. Indeed, It is vitally related to every form of human endeavor,, be
2. much greater consideration must be given in transportation planning to community objectives related to the kind of city and urban patterns that are developed as a result, rather than concentrating on meeting only narrower transportation â&#x20AC;&#x201D; user objectives;
it employment, commerce, education or recreation. The establishment and operation of transportation facilities require the commitment of a substantial portion of a community's resources, particularly with respect to funds, land, manpower and time. Thls major impact is not entirely a positive one as a number of effects inherent to transportation facilities and their operation adversely affect the community. It is therefore a matter
3. significantly greater emphasis should be_placed on the role of public transit within the City's
â&#x20AC;˘ 12.1
of major importance to minimize these deleterious
3. To create a transportation system in the City
influences as much as possible in the development of
that is:
plans and programs.
support and approval of City Council and the
acceptable in terms of gaining the
citizens, attainable with respect to the means and resources available to the City to impleThe transportation objectives are general state-
ment it, technically competent to adequately
ments intended to express desirable ends on a long term
meet the City's requirements and flexible
basis. They are translated into principles which are
enough to adjust to the needs of the future.
specific means by which objectives may be reached. Recognizing that it is impossible to fully meet all objectives at any point in time there will be a need to
4. To devise an overall transportation system
evaluate alternatives and to seek satisfactory compro-
that will endeavour to accomplish the previous
mises among the various objectives based on assessments
objectives in a manner resulting in the mini-
of social, physical, economic and environmental implica-
mum consumption of energy and other non-
tions.
renewable resources.
This process of planning and development will not
Principles for the Transportation System for Edmonton
necessarily yield plans or programs which will remain fixed over lengthy periods as the value of the original strategic advice will decline as actual behaviour departs
1. The planning and design of the various elements of the transportation system should help imple-
from its assumptions. The success of any plan requires continuous comparison between the plan itself and the actual development process of the area to which it is
ment General Plan policies regarding direction
applied. It will therefore be necessary to maintain a
of urban growth; location, type and intensity
cyclical monitoring approach to transportation planning
of land use; and population density and distri-
(as, indeed, to any planning program) to ensure that the
bution.
chosen approach is kept up-to-date and cognisant of recent events and emerging trends.
2. The transportation system for Edmonton should secure the maximum use of the public transit component rather than becoming increasingly dependent upon the motor vehicle.
Objectives for the Transportation System for Edmonton 3. Direct, convenient access should be provided from all districts of the City to the Central
1. To develop a system of transportation facilities within the City . of Edmonton to meet the
Area and to other areas of major urban activities.
requirements of all sectors of the community related to •the movement of people, goods and services and to ensure that this system is developed in a safe, efficient, economic and
4. The transportation system should be subject to a continuous review and adjusted where neces-
equitable manner and in a manner offering
sary as a result of urban growth, innovations
convenient connection to regional, provincial
in technology, improvements in financing
and inter-provincial transportation systems.
methods or changes in public requirements.
5. Specific transportation proposals should be 2. To reduce to the greatest extent possible the negative effects and disturbances occasioned by
established within the context of evaluation
the transportation system, and its operations
mental point of view of alternative schemes on
upon the quality of life throughout the City.
both a City and corridor basis.
from a social, economic, physical and environ-
12.2
• • ••
••
• • • • •
•• •
• • •
•• • •
S.
policies emphasize growth in a number of directions simultaneously, as in the case of Edmonton, the rate of growth in one particular sector could proceed much more rapidly than that of another if a significantly better, transportation system is provided and all other factors (such as land cost and availability, utilities provision etc.) are equal.
6. Facilities must be provided to ensure the availability of choice among modes of travel and relative priorities must be established for each mode to encourage its greater use in those situations where it is most appropriate. 7. Inasmuch as the peaking of travel demands is a major cause of traffic congestion and overcrowding, means to reduce peak demand should be sought and encouraged.
The form and function of a city's central area is also very much influenced by the type and effectiveness of the transportation system which services it. Normally, the central area is the nucleus around which the transportation system is evolved and, because of the concentration of employees in the downtown core, has the greatest requirement for transportation services. Therefore, the strength of a downtown is, in many respects, related to its accessibility. Within this area it is especially important that the ramifications of particular transportation/land use alternatives are thoroughly assessed and understood. For example, a city which is endeavouring to encourage a high proportion of mass transit ridership to its downtown could very well defeat this policy if, at the same time, it encourages a parking policy which provides for new, large parking structures in the downtown.
8. The provision of transportation facilities must be co-ordinated with the development of new areas, both residential and industrial, to ensure that the necessary services are available in accordance with the City's overall development strategies.
9. The process of transportation planning should seek to reduce as far as possible the deleterious influences of the transportation system in a social, economic, physical and environmental sense. Means of achieving this will be discussed more specifically in the presentation of objectives and principles for the various modes of travel.
The rezoning of land, if not carefully assessed, can also compromise established transportation facilities. For example, if residential densities in a developing area are significantly increased, the transportation system which links this area to the main activity centres in the city may not be able to cope with the increased load, thus necessitating major expenditures. On the other hand, the development of intensive uses on an unplanned basis along a major arterial roadway could substantially reduce the carrying capacity of that roadway to the detriment of the system's effectiveness. Examples of this type can be elaborated on at great length; however, suffice it to say that land use and transportation are inextricably combined and should be dealt with on an integrated basis.
NEED FOR CO-ORDINATION WITH LAND USE PLANNING As emphasized, there is a very strong relationship between transportation and land use planning and development within one area can have major impacts on the other. The purpose of this section is to stress this relationship and to outline briefly some of the major areas where co-ordination between the two is especially required. These areas encompass a field ranging from total City and metropolitan structure on the one hand to problems associated with individual zoning requests on the other. It is thus mandatory that transportation and land use planning together with their associated programs be integrated and co-ordinated through continuing, close liaison.
THE CONCEPT FOR EDMONTON'S TRANSPORTATION PLAN
The direction and rate of growth with which an urban area expands are strongly related to the transportation facilities which service particular areas and, in turn, the provision of these facilities is based on forecasts of land use expansion. Thus when planning
Edmonton's urban transportation system consists of two primary components â&#x20AC;&#x201D; public transit and the roadways network. Each of these must supplement the other in order to best meet the objectives and criteria
1 2.3
established in the General Plan. Improvements to the
impact on the evolution of a transportation system for
transportation system must be accomplished to
Edmonton. • Realizing these concerns, planning for
accommodate the growth and increasing travel demands
transportation must emphasize the development of a
within the City and its Metropolitan Area as well as to generally. improve and upgrade both the roadways
system geared to mass transit facilities, the minimization of the construction of major new roadways in the
system and the transit system. The specific alternatives
developed portions of the City and a concentration on
that will follow in the second phase of the transporta-
improving the efficiency of the present roadway net-
tion planning process will therefore deal with the extension and expansion of the present levels of the roadways
work and the provision for an outer ring roadway. This basic approach will be elaborated on in detail in the ensuing sections.
network and transit system, with priorities being initially
directed toward those areas presently in greatest need of improvement and those experiencing the greatest
PUBLIC TRANSPORTATION
urban development or redevelopment. These plans will be prepared from the standpoint of the enhance-
A major emphasis and increasing importance must
ment of the qualities of the present transportation
be attached to public transit in Edmonton's transporta-
services, particularly to provide specific relief at points
tion system as an alternative to the high implementa-
where traffic flows are subject to disruption or are
tion costs, both fiscal and environmental, of accommo-
expected to become so. Many of these plans will empha-
dating the motor vehicle. Mounting public concern to
size traffic operations and bus transit service techniques
make more and better use of public transit is demon-
which may gain priorities in their actual implementa-
strated by the unusually high record of transit usage in
tion where they can provide the most relief in the short
Edmonton. This trend should be encouraged and rein-
term future and with relatively less expenditure than
forced through the development of transportation
would be the case for the construction of new facilities.
plans for the City. Fortunately, public transit service is open to
The development of a transportation system for
systematic trial development of improvements to fit
the City of Edmonton is predicated on certain major
particular circumstances and, for the most part, these
concerns. These concerns relate to the establishment
are "reversible" — that is, they do not involve permanent
of a transportation network which will endeavour to
commitment but may be changed or discontinued upon
improve the quality of life, minimize deleterious in-
evaluation. In addition, a general increasing awareness
fluences upon the social and physical environment
of the needs for better, more adequate public transpor-
and yet provide an acceptable, efficient standard of
tation throughout modern urban society has led to many
transportation services throughout the City. They are:
important developments which can be of considerable help to Edmonton in this field. A formal, in-depth
1. It is unacceptable to attempt to fit freeways
investigation of the public transit system scaled to
into developed urban areas, established recrea-
Edmonton's requirements is therefore recommended as
tional areas or unique natural features of the
a fundamental part of the transportation planning pro-
City.
cess for the City.
2. Heavy use of vehicular traffic is contributing
On a more immediate basis, however, priority
significantly to air pollution in Edmonton,
should be given to a transit improvement program for
especially on days when temperature inversions
implementation at an early date. Inasmuch as peak
are experienced.
demand for work trips by transit already exceeds present transit service capabilities in several heavily
3. There is concern that, in the long run, the
travelled corridors it is essential, as part of the transpor-
supply of petroleum reserves is declining and
tation strategy for Edmonton, that this situation be
that urban transportation systems should be
corrected as quickly as possible. Another important
designed to make most effective use of these
concern is to maintain and improve the current reliabi-
resources.
lity of existing transit services through investigation into both transit and general traffic operations. Finally,
Other, more specific, concerns are expressed
investigation into other important but less demanding
throughout the Chapter and all have had a major
aspects of the transit operation must be undertaken,
1 2.4
• • • • •
• •• •• • • • •• •• •• •• •
as to ensure that the cost of transportation does not, in
including such areas as:
itself, act as an inhibition to mobility. — transit services to and between major activity
Objectives for Public Transportation
centres.
1. To establish a network of transit operations which
— special services catering to the needs of particular segments of the City's population such as the aged
provides a high level of service capable of attracting and catering to heavy peaking travel demands to and
or handicapped.
from major activity centres in addition to accommodating the needs of those dependent upon public
— the establishment of a park and ride service using
transit for mobility throughout the City.
express buses.
2. To provide an efficient public transit service that
— the establishment of protected curb lanes or other special rights-of-way for buses in the downtown
will attract a maximum number of passengers and thereby minimize downtown congestion caused by
and along congested corridors.
private vehicles and parking space requirements.
— providing transit priorities at signals, railway underpasses, river crossings and other points of
3. To establish an appropriate rapid transit system.
congestion.
4. To guide land use development in the most advantageous manner with respect to future transit routes.
— the general improvement of the system's operation through the construction of more bus shelters,
Principles for Public Transportation
improved signing, the designation of routes and
1. Public transit should dominate for work trips to the
schedules at all stops, and so on.
Central Area and other major activity centres and These investigations should lead to specific . operating
for trips generally during periods of high travel
plans or schemes and to trial projects where warranted.
demand and particularly where there is limited or
In addition to the above listed specific areas of
tional vehicular volumes except at disproportionate
insufficient capacity to properly accommodate addicost to the City or the environment.
study that could lead to a better mass transportation system, the concept of staggering the starting and quitting time of workers should be implemented. The
2. Redevelopment projects and other new major traffic
implementation of this concept would diversify traffic
generating projects should receive careful considera-
load patterns thereby reducing peak load problems.
tion as to their possible effects upon the transporta-
Similar beneficial effects would be experienced by the
tion facilities, operations, plans and future programs.
City's utility systems from such staggering of hours. 3. A transit improvement program incorporating the suggestions put forth in this Section should receive
In addition to the transit program outlined above, studies to this point strongly indicate the need for a
immediate and high priority in the City's transporta-
much higher capacity public transit service to serve
tion planning process.
densely populated corridors. 4. Neighbourhood design should reflect a strong emphasis on the pedestrian and transit rider and should
It is exceedingly important that the Edmonton Transit System be regarded, for financial planning
integrate transit routes and facilities with shopping
purposes, as a public service and not as a revenue earn-
centres and apartment areas.
ing system. The establishment of a mass transportation system, if it is to be effective, must be based on public requirements rather than on the isolated view of transit
5. Concentration of population should be encouraged
earnings and expenses. For example, the fare structure
stations to maximize the effectiveness of the transit
for transit usage must be kept to an acceptable level so
system.
near transit route corridors and future rapid transit
1 2.5
6. Public transportation should be subsidized to
volumes being accommodated. It must be noted that some congestion must inevitably be tolerated at peak periods inasmuch as the construction of a roadway system which would completely eliminate traffic jams would be wasteful of money and land resources.
encourage greater use of transit facilities as the community benefits from the reduction of street • congestion and other deleterious effects associated with heavy roads usage. 7. The location and programming of public transit
Emphasis must also be placed in the initial steps
facilities and roadways should be co-ordinated to avoid conflict and unnecessary duplication.
of detailed systems planning upon the extension of the present roadway network into new development areas and upon the definition of future roadway rights of way -
-
requirements to properly serve areas of projected growth
8. To attract customers, the design of suburban rapid transit stations should incorporate adequate parking
within the City and Metropolitan Area.
and automobile passenger loading facilities in addiThe roadways concept for the City of Edmonton
tion to feeder bus connections.
is based on a system of outer and inner ring roads with
The Roadway Network, Traffic Operations and Parking
connections to penetrator facilities of various standards and modes. The outer ring road relates to the need for
Edmonton's street system consists primarily of a grid network with major thoroughfares radiating from the City centre. Many of the main streets, however, although originally designed with thought to the future, have become inadequate for today's needs. These thoroughfares often have little or no room for expan-
interconnections between urban roadways and the various highways and regional roads linking Edmonton with its environs and other centres of originating or destination motor vehicular traffic. 'Nis facility will minimize the intrusion of heavy traffic into the urban communities of the City, lessen the need for the construction of major roadways into the central developed portions of the City and will facilitate the planned long term separation of extra-urban and intra-urban traffic. The
sion, consequently 'other means of accommodating increased flows must be investigated, most notably an improved public transit system. For the most part, proposals and plans covering various transportation modes such as roadways and transit that concern particular areas of the City will be developed and presented as components of Edmonton's total transportation
establishment of this facility must be such that it is capable of being constructed without requiring a disproportionate amount of the City's financial or land resources and that disturbances to adjacent communities are minimized. Actual construction of such an outer ring road will likely be some considerable time into the future, when traffic materializes to warrant investment in it. It is essential, however, if such a facility is to be
system. There are, however, particular aspects of the • roadways network, its associated traffic operations and its controls which should be considered separately. The first step in the preparation of detailed plans for the roadways component of the transportation plan should concentrate on a major investigation to determine the real traffic capacities throughout the City's roadway system; the extent to which the system carries present traffic levels; the conditions and locations where disruptions are created; and the potential for improving the qualities of the network and the City's major travel corridors. In other words, this phase of the process would be designed to ensure that efficient use is being made of present facilities. Improvements would be considered both from a point of view of traffic operations and control techniques and of the opportunities to construct new facilities or to reconstruct present facilities to enhance the existing system. An important part of the studies will be a continuing survey of actual travelling time throughout the City, as well as the travel
achieved, that standards and alignments be established so that the required right-of-way may be protected. In addition, studies directed to the ostablishmant of an inner ring route and penetrator roads el4ht be continued. These facilities provide direct, convenient and gradual transition between the external roadway system and the City's internal system anti also provide major intra-city circulation routes, exclusive of the older, inner city areas. 1 ha role of major roadway facilities diminishes significantly within the inner thin route and the public transportation system assumes the major responsibility for the movement of people within this area. The nature of the City within the inner ring route is such that the construction of new major roadway facilities of even an arterial standard would have severe physical, social and environmental effects on
1 2. 6
•• •• ••
• • •
•• • •• •• • •• •• •
established communities. Careful scrutiny of the true costs, i.e. physical, social, environmental and economic, of alternatives is therefore necessary to ensure that the most appropriate facilities are proceeded with.
analysis of total costs and total benefits expected from alternative proposed programs. These costs and benefits would be calculated in social, physical, economic and environmental terms.
Studies directed to the formulation of a parking policy for the City of Edmonton, especially in the Central Area, are required to more fully understand the relationships between traffic flows, parking provision and the impact of alternative parking policies on other modes of transportation. The effect that varying parking programs have on the attainment of transportation planning objectives is significant and care will be necessary to ensure that the policies implemented are mutually complementary with other aspects of the transportation program.
3. No new freeways to be planned in the River Valley or Ravine System except for crossings. 4. Acceptable levels and types of buffering between major roadways and adjacent residential areas should be implemented as soon as possible. 5. The establishment and protection of an outer ring road alignment to link the City's roadway system with the Provincial and regional highways network should receive priority in City and Metropolitan planning. The investigation of the possibility of establishing a green belt in conjunction with this outer ring road should be included as part of the
Objectives for Roadways Development
major growth alternatives study presently being undertaken by the Edmonton Regional Planning Commission in conjunction with the City of Edmonton.
1. To provide a functionally differentiated system of roads â&#x20AC;&#x201D; local streets, collectors and arterials â&#x20AC;&#x201D; that will accommodate existing and projected traffic flows from all parts of the City to all other parts, while recognizing that public transportation is the most appropriate mode for movement in and around the Central Area.
6. The roadway system should play a secondary and supporting role to the public transit system in transporting people to, from and within the central developed portion of the City. The roadway system within the Central Area shall be reserved primarily for the movement of people; truck traffic shall be permitted only for the movement of goods and services where the point of origin or destination is within the Central Area.
2. To make maximum use of existing facilities and rights-of-way that may be made available through the development or redevelopment process. 3. To minimize the deleterious effects, be they economic, physical, social or environmental, that are often associated with major roadway facilities.
7. The planning process for roadways facilities should recognize the importance of and the requirements for freight movement to, from and within the City and that truck routes designated should minimize to the greatest extent possible harmful influences on established residential districts.
4. To establish a parking policy for the City, and especially the Central Area, that complements the overall transportation plan. Principles for Roadways Development 1. The planning and design of roadways should take into consideration the nature of adjacent land uses, the volume and direction of traffic generated based on population and employment in the area to be served and should be co-ordinated, where appro, priate, with the establishment of major utility trunk systems.
8. Policies regarding the provision and regulation of parking should form an integral part of the transportation planning process. The parking policy should be based on the premise that public roadways are
2. The priorities or staging program for roadway facilities should be determined on the basis of a rational
9. During the initial design period, roadways planning should consider the incorporation of pedestrian and
constructed for the movement of traffic and not for the storage of motor vehicles. New public parking facilities should be limited in the Central Area.
12.7
bicycle trail provision.
OTHER TRANSPORTATION SYSTEMS Pedestrian and trail circulation systems, railways
FINANCING THE TRANSPORTATION PLAN
and airports are all transportation facilities that strongly influence the form and functioning of urban areas.
The implementation of a viable transportation
While a detailed review of these elements of the trans-
system will require, major capital expenditures beyond the City's present financial capacity. Nevertheless, an
portation system is beyond the present scope of this
efficient transit and roadway system is as much a
Chapter, a few important points concerning each should
civic responsibility as is the provision of schools, parks,
be identified.
utilities and other public services. In the past, muni-
Pedestrian Circulation and Trail Systems
cipal financing with some Provincial assistance has been used to fund a limited roadway program while the
Pedestrian movement and other forms of special,
transit system has required an increasing measure of tax
short distance transportation, although important
support in recent years to cover the deficit. However,
throughout the City, should receive priority where
with the rapid growth in recent years, many roadways
concentration of activity is so high that more conven-
have reached or exceeded their capacity and the transit
ient access can be provided by these means than by any
system is hampered by congestion. Additional sources
other. Appropriate instances include movement within
of revenue will have to be found to maintain an
neighbourhoods, major parks, the downtown and other
adequate transportation system.
major activity centres such as the University of Alberta, major commercial centres and so on. More specific
A financing system must be provided for the
material pertaining to pedestrian circulation is contained
overall transportation system which enables funds to be
in Chapter X, Central Area and Chapter XVI, Urban
assigned and used for priority improvements according
Design. Planning for pedestrian circulation normally
to determined policies without restriction as to the
will be accomplished through special studies relating to
modes or facilities of the transportation system upon
particular requirements in particular areas.
which they should be spent. The development, main-
The resurgence of the use of the bicycle has
tenance and operation of an integrated, multi-modal
created a need for alternative methods of accommodat-
transportation system serving the community requires
ing bicycle usage, both for work and pleasure trips.
that funds be available according to the needs for such
Special attention should be paid to the provision of safe
expenditures as required.
routes along congested corridors and to the development of special bicycle paths in the River Valley and Ravine
Recognizing that the revenue sources available to
System.
meet Edmonton's financial needs are limited by borrow-
Railway Transportation
ing and taxing powers granted to the City by the Province, it is readily apparent additional financial aid must be sought from the senior levels of government.
Railways have played a major role in the develop-
Access to additional sources of revenue for transporta-
ment of Edmonton and are significant occupiers of
tion programs could be provided either by the provision
urban land. In co-ordinating the provision of rail
of new taxing powers, such as a municipal gasoline tax,
facilities with land use planning the following principles
or by increased Provincial and Federal grants. It must
should be observed.
be emphasized, however, that the conditions attached to senior government funding policies should not distort
Principles for Railway Transportation
the development programs for the transportation system or fragment the implementation process. Every effort must be made to bring financial policies into line with
1. Railways operations should be suitably separated,
the objectives, principles and priorities established in
screened and buffered from incompatible land uses.
the General Plan. Although faced with limited finan2. Industry located adjacent to railway lines should be
cial resources itself, the City must make a start in establishing alternative policies for its own investments and
of a kind that requires rail service to promote a more
expenditures in its transportation system.
effective use of land and trackage.
12.8
• • • • • • • • • • • • • • • • • • • • • •
3. Close liaison should be maintained with the railways
maintained to accommodate passenger, freight, local
in order to co-ordinate the use of railway facilities
and training needs and to provide suitable landing
and the development of railwasy lands in relation to
and servicing facilities.
City expansion. 2. Airport runway approaches should be protected from incompatible uses and obstructions or hazards to air
4. Railway trackage, marshalling yards and operations
navigation.
should be rationalized in Edmonton through elimination, relocation and consolidation in order that an
3. Uses oriented to the airport and related services
efficient, convenient and nuisance-free standard of
should be encouraged to locate at the Industrial and
service is provided throughout the City.
International Airports and other unrelated uses discouraged.
5. Close co-ordination between all concerned agencies must be maintained when studies investigating alter-
4. Air transportation facilities should form a part of
native means of relocating or eliminating railways facilities are undertaken inasmuch as the ramifica-
the overall transportation system and should have
tions of resulting proposals are manifold.
good road access, ample parking with convenient mass transit services where appropriate.
6. When establishing new or expanded locations for rail freight operations the provision of facilities to
5. A satellite airport should be constructed near Edmonton for general aviation purposes.
enable the inter-modal movement of goods should be examined and incorporated into development plans where appropriate.
6. The Industrial Airport should operate as a special purpose regional airport oriented to business and
Air Transportation
commercial aviation traffic.
Four airports are located in the Edmonton area:
7. Terminal, hangar and other related facilities should
The International, Industrial, Namao Military and Cook-
be provided at the Industrial Airport as required
ing Lake Seaplane facilities. The two major terminals
subject to the availability of land.
serving Edmonton are the International Airport which accommodates national and international flights and the Industrial Airport which accommodates regional, business and commercial aviation traffic. The recent Edmonton Area Aviation Systems Master Plan Study completed by the Canadian Air Transportation Administration in conjunction with the City of Edmonton concluded that, while the Industrial Airport is an integral part of the Edmonton area aviation system, it is currently operating near its practical annual capacity. However, if the Industrial and International Airports are utilized in a manner so as to exploit each of their inherent advantages, and additional capacity is provided at a new satellite airport, the potential exists to develop a balanced aviation system capable of meeting the forecast demand beyond 1990. Recognizing this, the following principles should be observed in planning for the air component of Edmonton's transportation system. Principles for Air Transportation 1. An adequate metropolitan airport system should be
12.9
Chapter XIII
PUBLIC UTILITIES INTRODUCTION
standards.
The provision of most public utilities in Edmonton
The following general objectives and principles
is a function of local government with the City providing
pertain to all the various utility services. Where more
water, sewer, refuse disposal, electrical and telephone
specific objectives and principles relating only to a
facilities to consumers in the Edmonton area. The
particular utility were required, they have been in-
natural gas utility in Edmonton is privately owned. The
corporated into the discussion of that utility.
1981 Land Use Plan, prepared through consultation with
Objectives for the Development of Public Utilities
the various utility departments, determines the form of residential neighbourhoods and thus the nature and
1. To provide safe, adequate, economic and
limits of required services. This Plan indicating land use
reliable utility systems to serve the needs of
and future population densities serves as a guide for
Edmonton.
utility design. The ability to regulate urban development by exercising "planning control" permits utilities to be
2. To ensure the most orderly and economical
economically programmed at a level of service consistent
extension of utilities by programming their
with development demands and good public health
installation.
DIAG. 1 — UTILITY REQUIREMENTS FOR THE CITY OF EDMONTON. Scale based on 1961 level.
4.08 :•:•:
115
E773 337
New City Power Plant E a st
18
620
777
7771
315
l.51
8.7
Area
.72
126
34.7
• :•:•:
2.6
95
00 ON
POPULATION In Thousands
19.8
SO 01 el
CO CA
.00
WATER In Billions of Gallons
NO ON
•—■ cr,
GAS In Billions of Cu. Feet
13.1
.00 CY,
.08 1-1 SO
cr,
TELEPHONES In Thousands
•o•
r-1 ON
co
POWER In Billions of KW. Hours
Principles for the Development of Public Utilities
use of the condenser cooling water direct from the power plant.
1. Utilities should be designed and planned to serve the projected land uses and population
Storage facilities consist of two elevated tanks of
densities.
1 million and million gallons respectively and two 12
2. The plan for programming the extension of urban lands should consider the economics of
million gallon ground reservoirs. As urban development expands further away from the central plant and into
utility development.
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
3. The construction of utility facilities should be in accordance with the urban land extension
demands. There is a need for at least three new
program.
reservoirs by 1981 to provide a total storage capacity of 4. Utility buildings and structures should be designed with due consideration not only for utility
needs
80 million gallons.
and safety but also for
The range of water consumption in Edmonton
environmental amenities.
runs from 70 gallons per capita per day on the average for the winter months to 86 gallons on the
5. Where possible, all wire systems should be
average for the summer months, but peak summer days
placed underground and especially in new
reach 140 gallons per capita. The water supply and distribution system is designed to adequately meet the
residential districts. 6. The objectives and principles of the General
maximum requirements of this range. In addition, the
Plan should apply to the provision of utility
Edmonton system supplies water to Namao, Griesbach,
services whether they are municipally or
Leduc, the County of Strathcona, St. Albert and Oliver.
privately owned.
These areas presently account for less than five percent of the annual gross consumption of 10 billion gallons.
WATER SUPPLY AND DISTRIBUTION Objectives The North Saskatchewan River is vital to the planning of water and sewer services for Edmonton. The
1. To safeguard the City's water supply and to
provision of these services in the City are of major
provide adequate amounts of good quality
importance in carrying out development policies. Based
potable water.
on the volume of River flow the amount of sewage
2. To provide a balanced system of water supply
permitted to be discharged is regulated in accordance
and distribution network to meet the full
with standards established by the Provincial Board of
domestic, industrial and emergency require-
Health. The Brazeau Dam provides a minimum winter
ments of the City.
flow of 2,000 cubic feet per second and 10,000 cubic feet per second in the summer. A population of one
Principles
million will require approximately 140 million gallons 1. Treatment plants, pumping stations, reservoirs and the distribution system should have a
for a peak day which is only three percent of the average summer flow and 85 million gallons per day in the
capacity to meet the maximum hourly water
winter, or eight percent of winter flow. Water supply
demand as well as the emergency, fire and
on a long-range basis is, therefore, adequate to meet increasing local consumption needs.
disaster demand of the City. The system should be such that storage and flows can be conveniently balanced to meet the full range of
Treatment capacity at the existing plant has
these water demands.
\ recently been increased to 85 million gallons daily,
2. Storage should be provided in a series of
sufficient to meet the demand until 1970. Additional capacity will be provided by a new plant upstream to be
reservoirs located near the periphery of the
constructed in stages as required. Water treatment and power generations when operated jointly from the same
developed area. Each reservoir should be supplied by an independent pipeline radiating
intake on adjacent sites function more economically
from the central plant. Balancing storage should
by raising the water temperature in winter through the
equal twenty percent of the maximum daily
13.2
•• •
• • • • • • • • • • • • • • • • • • •
use. In addition, one average day's water
2. To safeguard Edmonton's water supply and the
requirement should be stored for emergency
supply of water to communities downstream.
purposes and twelve million gallons for fire purposes.
Principles
6. The water system should maintain a minimum
1. Control should be exercised over development
pressure of 40 pounds per square inch and not
so that design capacities of sewer pipes will not
more than 70 pounds per square inch during
be exceeded and regulations enforced to control
maximum usage.
the type and quality of waste from industry.
7. The metering system in Edmonton should be
2. Storm and sanitary sewers should be separate
continued to discourage wastage by consumers.
where possible in order to relieve the load on the treatment plant.
SEWAGE DISPOSAL Edmonton's main sewage treatment plant provides
3. Private water supply through individual wells and private sewage disposal through septic
primary and secondary sewage treatment. The main
tanks should be permitted only where the
sewage plant which also serves Griesbach and Namao has
extension of sanitary sewer systems are neither
now reached its design capacity and should, therefore,
practical nor economical.
be expanded during the Plan period. The secondary 4. Sewage lagoons should only be utilized where
system has a capacity of 30,000,000 gallons per day or
economics make plant disposal impossible or
a population equivalent of 250,000 and a smaller
impractical and where lagoon sites are available
primary sewage treatment plant located in Queen Elizabeth Park can handle a population equivalent of
which do not conflict with or harm surrounding
52,000 daily. Because of the self-purification qualities of
land uses.
the River, a certain amount of primary treated sewage
5. Where possible, sewer systems should operate
can be placed in it, depending upon the time of year
on a gravity flow basis to avoid the need for
and volume of flow without deleteriously affecting the
pumping stations.
downstream water supply. The main plant site will permit expansion to three times its present capacity.
6. The design of sanitary sewer systems should
In order to postpone the large capital expenditures
have regard to the peak load conditions in
required to expand this plant, lagoons have been built
Edmonton, the use of natural grades for
in the northeast industrial area. These lagoons will
economical operation and adequate installation
handle effluent from the packing plants in northeast
depths to prevent freezing.
Edmonton and from some of the northeast residential areas.
STORM DRAINAGE More intense development in the Central Area
Storm sewers are used to collect and carry surface
has necessitated the construction of relief sewers to
water or reduce to a minimum any flood damage. The
supplement the original system. Large interceptors are
rapid growth of Edmonton is producing a substantial
presently being designed to provide sufficient capacity
increase in paved area thereby creating a faster rate of
to serve a population of one million or more. The
run-off and collection. Adequate storm sewer facilities
separation of storm and sanitary sewer systems is a
are, therefore, essential to keep local flooding to a
general policy for all new areas but combined systems
minimum.
exist in the older built-up sections and will likely continue.
Objectives 1. To protect public and private property from
Objectives
flooding.
1. To provide a sewer system and treatment
2. To provide drainage facilities that are adequate
facilities to control and limit River pollution
to handle heavy rainfalls and spring runoff.
and the emission of odors; to protect public health; to protect the River Valley as a
Principles
recreational area; and to prevent water contamination.
1. Sewer rights-of-way should be economically
13.3
planned to operate on a gravity system and to
incinerators and landfill areas to meet require-
utilize natural water courses where available.
ments during the Plan period in as economical a manner as possible.
2. Storm sewers should be designed with due consideration for the type of surface drained and for high intensity storms which may
Occur.
Principles
•
1. The economics of landfill compared to the problems of air pollution associated with
REFUSE DISPOSAL
incineration should be considered in order to obtain the most efficient and economic system
The method of refuse collection and disposal is
of balanced disposal for the City.
significant in a planning context. The disposal of refuse involves a major use of land that can radically
2. Compulsory collection of domestic refuse must
affect planning for the surrounding area. Perhaps no
be continued to eliminate the nuisance and
other land use has such potential for public controversy
air pollution caused by individual onsite burning
as refuse disposal operations and, therefore, careful
and to preclude health hazards and nuisances
advance planning must be undertaken to minimize land
associated with individual waste disposal
use conflicts in the selection of disposal sites.
methods. 3. Strict control must be exercised over the
The present City refuse disposal system includes
disposal of extensive industrial, commerical
an incinerator in Cloverdale and three landfill areas;
and construction wastes to prevent unnecessary
5 acres in Jasper Place, 60 acres east of Beverly and 160
and harmful pollution.
acres south on 75th street. The incinerator is presently operating at a capacity of 15 tons per hour. The residue is dumped at the site and will eventually be covered
POWER SUPPLY AND DISTRIBUTION
and landscaped. The present incinerator site will be
The City of Edmonton Power Plant, I9cated in the
displaced by roadways and park needs sometime after
River Valley, has an ultimate capacity of 405 megawatts.
1970.
An additional 600 megawatts will be required by 1981. The bulk of this need will be supplied, by a new power Although the economics of operation preclude the
plant constructed in northeast Edmonton on the east
establishment of additional incinerator facilities within
side of the North Saskatchewan River opposite the
the City at the present time, a continuing awareness of
Kennedale Ravine.
new technological improvements in this field should be The increased utilization of power per capita,
maintained and the costs of incineration as opposed to landfill studied to ensure that refuse disposal is carried out with a maximum of economy and a minimum of pollution.
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 per cent per year so that by 1981 the load could reach as - high as 4.1 billion
Additional landfill areas will be required at suitable
kilowatt hours per year. Electric power rates in
locations beyond the urban area. The location and
Edmonton are among the lowest in Canada.
selection of sites for sanitary landfill should be dependent upon a number of factors including: land
City growth should not necessitate any major
area requirements, topography, drainage, availability of
changes in policy of operation but there will no doubt
cover material, accessibility, length of haul, future use of
be an acceleration in technical changes such as:
the land, proximity to developed areas and provision of adequate screening.
Objectives
— the use of district operating and stores depots to reduce transportation time and improve service — the use of higher voltage transmission lines to economically serve the increasing load densities
•
1. To carry out the public responsibility of waste disposal in order to protect public health and
— the continued trend to place transmission lines underground to improve aesthetics and lessen the
amenities.
• • • • • • • • • • • • • • • • • • •
problems of providing rights-of-way.
2. To provide a waste disposal system consisting of
13.4
•
for the evening. Special equipment will expand the
The number of major substations should increase from four to possibly eleven by 1981.
ordinary use of the telephone. Speaker phones, data
Objective
communication and many other services can be provided.
phone service, pushbutton dialing, inter-office
To provide electric power to meet the expanding
Objective
needs produced by growth, a rising standard of living
To provide an efficient and modern telephone
and the application of electricity to new uses.
service to the residents of the City of Edmonton.
Principles Principle
1. A planned expansion program should be instituted to aid in reserving and economically
In planning sites for exchanges, consideration
acquiring necessary rights-of-way for trans-
should be given to the potential number of subscribers
mission lines, substations and other structures.
and physical limitations of their service areas. These exchanges are normally planned to serve an area with a
2. Provision should be made for joint use of rights-
radius of about two miles containing an urban population
of-way by electric, transit, telephone, fire and
of 100,000 people.
other systems.
NATURAL GAS SUPPLY
TELEPHONES
Northwestern Utilities Limited has supplied the
The City of Edmonton Telephone System is one of the largest municipally owned telephone systems on
City of Edmonton with natural gas since 1923 and operates under a franchise agreement granting the
the continent. At present there are nine exchanges in
Company the use of streets and lanes for the laying of
the City including one in Jasper Place which is owned
pipe and the exclusive right for the supplying of natural
and operated by the Alberta Government Telephones.
gas for domestic and heating purposes. In return, the
By 1981, one more exchange will be required in the
City collects eight percent of the residential and three â&#x20AC;˘
southwest area of the City.
percent of the industrial gross receipts from the sale of
The character of telephone service is determined
gas, plus property tax on the facilities located inside
by population growth, the increase in the number of
the City. The rates are among the lowest in Canada and
telephones per person and the use of new and varied types of special equipment. Technological improvements
the supply of gas is assured for at least 30 years.
such as electronic switching will provide better, faster
Objective
and a greater variety of service than ever before. Special
To encourage the development of natural gas resources to ensure that an adequate supply will be
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
available for the City to meet daily base and peak load requirements throughout the Plan period and beyond.
in progress or to direct incoming calls to friends' homes
13.5 ,
• • • • • • • • • • • • • • • • • • • • •
Chapter XIV
PROGRAMMING
INTRODUCTION The achievement of the objectives contained in
development will proceed in the six outline plan areas.
the General Plan is, in large part, dependent on the
Also included is provision for redevelopment in the
provision of a staging program that outlines the sequence
built-up areas. The industrial program consists of one
in which specified areas may be developed or
fifteen-year stage from 1966-1981 with provision for a
redeveloped. Absence of careful planning and proper
reserve area beyond 1981 and for special uses. The
timing could create excessively high long-run develop-
parks program consists of three five-year stages from
ment costs. Through a broader evaluation of needs, a system of priorities would be outlined to ensure the
1966-1981 with additional parks being planned for in the developed areas. This program would be subject to
most orderly and comprehensive development of public
modifications and additions or deletions recommended in the forthcoming Master Plan for parks and recreation
and private facilities.
facilities. One of the greatest sources of financial waste in Objectives for Programming
local government is often the required extension of utilities and roads and the provision of schools and other public services to isolated areas developed pre-
1. To promote orderly and compact expansion.
maturely. As a result, development may be retarded by
2. To direct urban growth into the most desirable
inadequate services to areas where they are more
locations.
urgently required. 3. To provide a variety in choice for residential and industrial sites in several locations through-
Chapter IV, Urban Growth and Land Use,
out the City.
delineates the general areas in which urban expansion would be most advantageous. Based on projections of
4. To provide a basis for an efficient and orderly
population and employment, this Chapter will outline
construction program of neighbourhood and
land requirements for successive five-year periods.
community facilities.
Approval of this staging program will provide a
5. To assist City and senior government depart-
plan to which all City Departments could refer. This
ments to program their own capital works as
kind of program would also permit other government
part of the overall City program of develop-
and private agencies to plan and co-ordinate their own
ment.
individual development programs within the broader
6. To provide information to assist public and
City program.
private agencies in their long-range planning and financing programs.
Land uses included in the staging program are for 7. To ensure that the location and timing of parks
residential, industrial and park areas. Bridge and roadway staging is referred to in the Transportation Chapter.
development on a neighbourhood, district and
The program for new residential development consists
City basis are related to the rates of growth
of a two-year stage from 1969-1971 during which growth
of the various expansion areas of the City and
in the presently developing areas will progress rapidly
to the degree of parks deficiencies in older
and two-five-year stages from 1971-1981 during which
areas.
14.1
KEY Residential Program Stage 1 1969 - 1971
Stage 2 1971 -1976
Stage 3 1976 - 1981
Industrial Program
Developed Area
1
Fl EDMONTON GENERAL PLAN
STAGING PLAN PROGRAMMING
Stage 1 1966- 1981
Stage 2 Beyond 1981 and Special Uses
DWG.
1
• • • • • • • • • • •
CHAPTER XIVO
development alternatives and costs for consideration
Principles for Programming
by City Council.
1. The staging program will consider the location and size of areas to be developed, population,
THE PROGRAM FOR RESIDENTIAL DEVELOPMENT
growth trends and distribution and employment
The program for residential development is based
and density projections.
on population projections and the probable distribution
2. Staging priorities must consider the areas with respect to utilities, roadways, air pollution,
of people into new and built-up areas. Although the rate of expansion in any given direction will depend upon
and conditions topography, soil noise, proximity to core area, work areas and
the ability of developers to service and market land, an estimation of growth distribution throughout the
recreational areas.
Plan period is essential to co-ordinate the provision of
3. Partially developed neighbourhoods should be . completed in Stage 1 of the residential program.
necessary municipal services and facilities. Population increases for three growth periods are given in the following tables:
4. Neighbourhood parks in new residential areas should be developed concurrently with the
POPULATION GROWTH
construction and occupancy of houses in the Population
Year
neighbourhood.
422,400 445,000 525,000 620,000
1969 1971 1976 1981
5. High density development should be restricted to areas adjacent to major transportation routes in the vicinity of major employment, educational,
commercial
and
Period
Growth
196 9-7 1 1971-76 19 76-8 1
22,600 80,000 95,000
Total Population Growth
recreational
197,600
centres. The population increase of 197,600 is distributed 6. Adequate industrial land must be set aside in a variety of appropriate locations within the
into new areas in the west, southwest, south, southeast, northeast and north sections of the City, into presently
City.
developing areas (Steele Heights, Londonderry, Dickinsfield, Rundle Heights and Duggan) and into
7. The staging program should be based on a thorough analysis of all utility and service
developed areas throughout the City.
programs.
DISTRIBUTION OF GROWTH
8. The most beneficial and economical development program should be followed regardless of
Population Increase
Approx. Acreage Requirement
17,700 15,600 13,600 39,400 23,000 23,100
890 780 680 1,970 1,150 1,160
New Area Growth Developing Area Growth Developed Area Growth
132,400 42,000 23,200
6,630
Total Growth
197,600
Location
land ownership patterns.
West Southwest South Southeast Northeast North
9. 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
The acreage requirements in the above table were
expansion expected yearly over the following
derived using an average of twenty persons per gross
five years. Staging of the fifteen-year industrial
acre including freeway and regional park needs but
program should be separated into five-year
excluding any River Valley or ravine lands. These figures and areas of growth should be used only as guidelines as
stages.
the actual figures in each area will vary depending upon The program contained within this Chapter is a guide
the economics of servicing, demand and willingness of
to further reports by the Administration on other
private developers to initiate private development.
14.3
A discussion of items influencing the rate of
North - B.A.C.M. Development Area
growth for each of the six expansion areas, the presently
•
The acquiring of a large tract of land under single
developing areas and the built-up areas forms the
ownership in combination with the offering of housing
remainder of this section.
intended for the middle and lower middle income groups indicates that this area should have a rate of growth
Southeast-Southeast Development Area
similar to that of the northeast area. The main difference
Staging priority has been given to the Southeast
between the projections of growth for the two areas is
Development Area where it is felt that the sale of land by the municipal authority will maintain reasonable lot prices and therefore a high demand. It is projected that
and since utility extensions are not as easy as in the
approximately 39,400 persons will reside in this area by
not commence until 1971 but, once underway, will
1981 or 29 percent of the total outline plan area
proceed rapidly as this area is further removed from
that, since the plan for this area is still being prepared Northeast, growth in the B.A.C.M. area probably will
population anticipated by this date. In all likelihood,
industrial influences than the Northeast area. The
growth in this area will not proceed until late 1971 or
greatest constraint facing this area is one of access as
early 1972 due to the need for extending trunk sewer
roadway improvements required to move traffic from
facilities from the east but, once started, will progress
this area to the downtown are extremely difficult to
very rapidly throughout the Plan period. Planned
undertake and only limited arterial improvements are
improvements to the arterial road system in addition to
anticipated during the Plan period. Problems will also
the construction of the Mill Creek Freeway will provide
be evident in the number of people which the existing
this area with the essential transportation facilities
water distribution system will be able to serve and in the
necessary to handle the 1981 population.
provision of storm sewer facilities.
Northeast-Clareview, Casselman and the Hermitage
West-West Jasper Place
The designation of this area for the provision of
Growth in West Jasper Place over the next few years is expected to be very rapid due to the lack of
housing for the middle and lower middle income groups ensures that it will accommodate an important segment
other areas in the City capable of handling immediate
of the total forecast population. Accordingly, 23,100
growth. However, as other outline plan areas are
persons are projected to reside in this area by 1981. This
developed it is expected that competitive land prices in
represents 17 percent of the total population allocated
other areas will tend to retard growth in this sector.
to outline, plan areas. Northeast Edmonton is one of the
Access- to this area will be improved by proposed
easiest areas in the City to provide with utility services
extensions to the Jasper and Whitemud Freeways while
since trunk sewer, gas and power lines already pass
extensions to existing trunk facilities will largely provide
through the area, although trunk storm sewers have to
the necessary utility services. Approximately 17,700
be constructed from the Kennedale Ravine to 153rd
people are anticipated in this area by 1981 or 13 per
Avenue and 50th Street. It is anticipated, at present,
cent of the total outline plan area population.
that construction of this sewer will not start before the winter of 1972-73. Improved access to this area will be
Southwest -
provided by the Northeast Freeway which should be
R iverbend Terwillegar Heights
constructed to arterial standards by 1981 but early
The Riverbend Terwillegar Heights area is expected
development of the area will be heavily dependent on
to house a population of 19,000 by 1981; this accounts
implementation of the northeast leg of the proposed
for 14 per cent of the outline plan area population. The
rapid transit line. As the outline plans for the various
projected rate of growth in this area is somewhat
components of the northeast have been completed and
lower than that of other areas since, to date, this area
are presently being processed it can be expected that
has catered to meeting the needs of upper middle and
servicing will commence in the spring of 1971. Rapid
high income housing market for which there is a limited
growth is forecast for the early years of development in
demand. The higher land costs in this area also tend to
the northeast as it is one of the few areas which can be
mitigate against its rapid development. Roadways and
quickly serviced but the rate of growth should decrease
utilities will be extended to this area from the already
somewhat as the competing So.utheast Development and
developed portion to the north in accord with the
B.A.C.M. areas come on to the market.
provisions of the outline plan for the area.
14.4
• •• •• •
•• •• •
• • • • •
•• •• •
THE PROGRAM FOR INDUSTRIAL DEVELOPMENT
South - Kaskitayo As the outline plan for this area is only in the
The industrial staging program is based on employ-
initial stages of preparation it is unlikely that develop-
ment projections and the anticipated distribution of workers throughout the Metropolitan Area. Manufactur-
ment will commence until 1971 and then development is expected to proceed at approximately the same rate as
ing employment for the Metropolitan Area is estimated
the West Jasper Place and Riverbend Terwillegar Heights
to be 33,360 by the year 1981. Distribution, location
areas. However, a smaller portion of the total projected
and area requirements are estimated from existing
outline plan area population (13,600 persons or 10 per
standards and employment category projections. A
cent of the total) has been designated for this area due to
liberal allowance is made for non-manufacturing
its smaller size and the fact that the entire Duggan sub-
industries such as wholesalers and warehouses,
division has yet to develop. As in the Terwillegar
construction and trucking firms, storage lots and vacant
Heights area utilities and roadways will be extended to
areas for future expansion.
the area south of Duggan from presently developing There are presently some 6,700 acres of used
areas to the north.
industrial land in the Metropolitan Area. An additional projections of growth by area are only estimates and
7,300 acres will be required for industrial use by 1981. Approximately 1,100 acres are available in the developed
that the development of any particular area will depend
areas (Kennedale, Central, south Edmonton, etc.), 1,700
It should again be emphasized that these
to a significant degree upon the ability of developers
in the northwest and 4,500 in the southeast industrial
in each expansion area to successfully service and
areas. An additional 7,600 acres are designated as
market lots.
industrial reserve beyond 1981 and for special uses such as large land users or obnoxious or hazardous industry.
Presently Developing Areas
SUMMARY OF INDUSTRIAL LAND REQUIREMENTS 1966-1981 Beyond 1981
It is estimated that, during the Plan period, presently developing areas will accommodate
City of Edmonton Outside City Total Metropolitan Area
approximately 42,000 people. Much of this growth will occur in the early stages of the Plan period as existing
5,200 2,100 7,300
1,800 5,800 7,600
Total 7,000 7,900 14,900
Areas in which residential uses conflict with
subdivisions are filled in before the new outline plan
industry are to be redeveloped industrially. This consists
areas can be serviced and made available for develop-
of older housing in the Queens Avenue, Calder, North
ment. Drawing 5, Chapter III indicates the projected
Edmonton and Whyte Avenue areas and along the
growth in each of these presently developing areas as
proposed northeast freeway.
well as for the remainder of the City. The area of major industrial expansion is in the
Built-Up Areas
south part of the City where industrial estates are being developed with access to both railways. Utility services
Higher densities in developed areas are expected to
are well advanced into this area with adequate provision
account for an additional population of 23,200. Major
for expansion. The proposed major roadways will add to the long-term desirability of this area. To the east of
increases are expected in the Central Area and adjacent fringes and in the Strathcona and Garneau areas. Minor
the City, large areas are allotted for expansion of steel,
increases are expected in central Jasper Place, Norwood
petro-chemical and related industry. The northwest area
and the University Campus. The extent of Central Area
is expected to continue to develop in the industrial
development will be influenced by existing public services, future mortgage lending policies and the grow-
estate manner housing non-noxious light industry.
ing transportation problem. Some residential uses in the
THE PROGRAM FOR PARKS DEVELOPMENT
Central Area will be displaced by roadways, commercial uses, parks and public uses. At the same time there will
The acquisition and development of open space
be a growing use of air right developments over roads and
for parks and recreation is an important element in
railroad land in the Central Area. Industrial uses north of Whyte Avenue between 101st and 104th Streets are
maintaining a pleasing environment for the citizens of
to be redeveloped residentially on a long term basis.
are to provide various types of recreational space for
Edmonton. Basically the principles of development
14.5
••
neighbourhood, community and district needs and to create a continuous park area in the River Valley and
Beverly, Ottewell and King Edward Park. Special parks including the Civic Centre Sir Winston Churchill Park
adjacent ravines extending from the southwest limits of
and City Zoo will require individual consideration and
the City to the northeast.
these projects should be integrated with the overall parks program for Edmonton.
The program for parks and recreation development
The River Valley
is based on existing facilities and projected urban growth. Requirements were determined from basic standards
Some 2,100 acres of River Valley and ravine area
outlined in the Parks and Recreation Chapter. The order of park development is dependent upon such
are staged for development for both public and private uses. The intensity to which these areas are developed
aspects as age of the district, proximity to the River
will depend upon topography and proximity to the
Valley and the existing and proposed park facilities in
Central Area. Arboretums, botanical gardens, zoos, picnic grounds and athletic fields will occupy land in the
relation to schools throughout the area. Generally, park facilities should be provided in new neighbourhoods
more central areas. Ski slopes, boating facilities, golf
concurrently with the construction and occupancy of
courses and camping grounds will generally be located
houses. Older neighbourhoods that are deficient in parks
in the fringes. Some areas will remain in their natural
should be given attention for park development to
state linked together by continuous pathways and trails.
provide adequate parkland for the residents. Urban renewal schemes should provide additional parkland
Proposed roadways throughout the various ravines
in older residential districts such as Boyle Street and
will require adjacent amenity and buffer park areas.
McCauley.
McKinnon, Quesnell and Capilano ravines are included in Stage I and Mill Creek in Stage I ll. The proposed 105th
Active park areas such as playgrounds and athletic
Street and Low Level Bridge approaches will require
fields should be developed before amenity parks, buffer strips and median areas. Parkland in new areas is
substantial land purchases in Rossdale, Walterdale and
expected to total some 1,100 acres consisting of active
acquisition and conversion of these residential areas near
parks combined with school facilities. Additional park-
downtown for roads and parks will require ten or more
part of Cloverdale beginning in Stage II. The costly
land should be acquired and developed in the Central
years to complete. Other parkland in Rundle Heights,
Area and in Strathcona where large population increases
the Kennedale Ravine and Whitemud Creek will generally
are expected.
be developed following residential growth in these areas. The remaining parkland in Patricia Heights, Terwilleger
More intensive use is planned for district parks in
Heights (Big Bend Park) and Whitemud Creek will
Argyll, West Meadowlark Park, Prince Rupert and
probably not be fully developed until sometime after
Lauderdale and community parks in Rosslyn, Glengarry,
1981.
14.6
• • • • • • • • • • • • • • • • • • • •
Chapter XV
FINANCING AND CAPITAL PROGRAMMING Fortunately, during this period of expansion,
FINANCING
Edmonton was able to benefit somewhat from the
Edmonton's Financial Position
increased Provincial grants-in-aid and loans which the
Since the discovery of oil near Edmonton in 1947,
Province was quite able to pay. Future expenditure
the City has experienced a tremendous rate of economic
policies will require a very careful evaluation of the
development and population growth. This growth has
City's financial position in relation to its outstanding
been accompanied by an increasing need for public
debenture debt and the existing and foreseeable revenue
services and facilities, consequently increasing the current
sources.
and capital expenditures of the City substantially. In the period from 1947 to 1965 annual current general
Edmonton's Current Revenue Sources
expenditures increased by more than 1000 percent,
Revenue sources available to meet Edmonton's
amounting to more than 62.5 million dollars in 1965.
financial needs are limited by the borrowing and taxing
In the same period, the combined total current general
powers granted to the City by the Province. As required
expenditures for all purposes amounted to over 537
under provincial legislation, current revenues from realty
million dollars while total municipal capital expenditures,
taxes, licenses, special frontage taxes, utility
including utilities and excluding schools, amounted to
contributions and taxes, business taxes and government
400 million dollars.
grants, are budgeted to equal current expenditures.
The rapid economic and population growth has
THE PROPERTY TAX
created the need for capital expenditures amounting to 437,639,000 dollars in a twenty year period January 1,
The property tax consists of the realty tax and
1947 to December 31, 1966. Approximately forty
the special frontage tax. The realty tax is based on the
percent of the expenditures were financed by other than
value of all the property assessed in Edmonton not
debenture issues. Although net assessment increased
exempt from taxation by law. A general assessment roll
substantially from 83 million dollars in 1947 to 646
is compiled and upon confirmation of the roll a mill
million dollars in 1965 the property tax yield and
rate is struck for municipal and school purposes. In
assessment increased at a rate well below the expenditure
addition to the municipal school purposes mill rate, special frontage taxes are levied for local improvements
rate.
purposes.
The total municipal debt of Edmonton, which includes general and sewer debt, local improvement
Historically, the property tax has been, and in all
debt and utilities debt, increased from 17 million
probability will continue to be, the most important
dollars in 1947 to over 182 million dollars in 1965. The
source of current revenue for Edmonton. Between 1947
net schools debenture rate increased from 3.5 million
and 1966, property taxation, including special frontage
dollars to over 44 million dollars during the same period, giving Edmonton a gross funded debt of over 226 million dollars in 1965. A large portion of this debt does not affect taxes to the same extent however, as it
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
consists of utilities debt, property share of local improve-
revenue but with the utilization of new revenue sources
ment debt and other similar long term accounts
this percentage is expected to decline somewhat. With
receivable which are self-liquidating. The net debt less
the continued increases in capital expenditures, however,
utilities or the debt affecting taxes was 464.80 dollars
the burden of the property tax will not be alleviated.
per capita in 1965. The municipal debt supported by In 1965, net assessment amounted to 646 million
taxation amounted to 84,947,000 dollars and had a per
dollars, more than double that of ten years prior. Tax
capita equivalent of 227.46 dollars.
15.1
exempted properties have also increased substantially,
governments have been called upon to increase sub-
to an assessment value of approximately 200 million
stantially the amount of direct aid to Edmonton. This
dollars in 1965, as compared to 51 million dollars in
has come in the form of:
1956. Tax exempted properties include Federal and
— Federal and Provincial payments in leiu of taxes
Provincial government properties, the University, schools,
on Federal and Provincial properties.
colleges, religious places of worship, charitable organizations, hospitals, properties of agricultural
conditional and Provincial and — Federal unconditional subsidies, including Provincial high-
societies, library boards and non-revenue producing City properties. With the ever increasing demands for
way and welfare grants.
funds by urban areas, the four fold increase of tax
— Federal, Provincial and Municipal shared-cost
exempt properties in the past ten year period in
programs.
Edmonton does suggest that the situation may be reaching a critical state. Although grants-in-lieu of taxes
— The Municipal assistance grant on a per capita
are now being received for some properties the City
basis derived from the Municipal Assistance Act.
should examine and appraise the status of all tax In addition, the Federal and Alberta governments
exempt properties with a view to achieving a more
have provided for grants of indirect assistance:
rational and equitable property tax structure.
payment by the Province of a portion of school
THE BUSINESS TAX
operating and capital costs up to an adequate The City Act permits Edmonton to assess all
standard as provided by the School Foundation
business conducted within the City. The tax rate varies
Program.
with the type of business and ranges from 6 to 20 payment by the Provincial and Federal govern-
percent with the average yield being approximately 11 percent of the assessed value. As a percentage of total
ments of a portion of operating and capital costs
revenue, the business tax has declined from 6.8 percent in 1956 to 5.0 percent in 1966 and should continue to
of all approved hospitals at the level of standard ward care. Substantial amounts are also provided
decline as a percentage of total current revenue. The
by the Province to assist local health units and
rates for the business tax could be increased and the
nursing services.
assessment of certain types of businesses for tax purposes
a number of Federal and Provincial programs under
could be raised to provide a greater amount of revenue
the terms of which municipalities may borrow
in the future. A review might be appropriate of the
funds to finance the cost of certain projects at
business tax exempt status of commercial enterprises
rates below rates prevailing in the money market.
of the Provincial Government such as the Alberta Liquor Control Board and Provincial Treasury Branches.
The Provincial and Federal governments have greatly increased their share of providing revenues for
GENERAL DEPARTMENTAL REVENUES
the City over the previous ten years, amounting to 7.9 This category includes revenues from: licences and
million dollars or 11.9 percent of total current revenues
permits; rents, concessions and franchises; fines; interest
in 1966. Of this, the total grant by the Province was 6.9
earnings; service charges; recreation and community
million dollars as compared to 3.4 million dollars in
services; and miscellaneous. Revenues from these sources
1956. Both the Federal and Provincial governments are
in 1966 amounted to 7.9 million dollars or about 11.8 percent of the total as compared to 3.1 million dollars
expected to further increase their contributions to the City of Edmonton as they both have substantial powers
or 13.3 percent in 1956.
for tapping new revenue sources. Ultimately, greater aid
GOVERNMENT GRANTS
financing as recommended by the Province's Public
is expected in school education and urban freeway
Government grants are a most indeterminable
Expenditure and Revenue Study Committee. In addition,
factor of revenue to the City and are assuming increasing
the Government of Alberta is planning to create a special fund designed to enable cities to purchase lands for
importance in the financial planning for a capital
future freeway development. Cities would borrow from
improvement program. In recent years, the debt and
the fund at low interest rates, thus enabling them to
the rates of taxation of Alberta's municipalities have
acquire and hold land without dipping into their year to
increased sharply. Consequently, the Alberta and Federal
15.2
••
• • • •• • •• • • • • •• •• • • • •
recognized the increasing burden of schools financing
year current and capital accounts.
for the property taxpayer and has been providing a greater proportion of the funds needed to finance the
UTILITY REVENUE TAX AND CONTRIBUTIONS
expanding education program. Between 1955 and 1965
Revenue taxes and contributions from City-owned
the Province's contribution had increased from 34.5
utilities added greatly to Edmonton's general revenues
percent to 42.4 percent of the schools' revenues.
in the previous years and have aided in keeping the per capita property tax below that of many other major
In 1966, approximately one out of every five
Canadian cities. Perusal of civic utility operations
revenue dollars was spent on retiring debt charges, more
indicates a yearly gross revenue growth of six to nine
than any other category, excluding education costs. This
percent. Annual utilities contributions (net of the
is approximately five percent higher than the rate
Transit System deficit) and the utility revenue tax
recommended by municipal finance experts. Edmonton
increased from 1.8 million dollars in 1956 to over 10
was burdened with the third highest per capita net debenture debt (excluding school debt, net
million dollars in 1966, representing an increase of from 7.5 percent to 15 percent of the City's current revenues.
self-supporting public utility debt and sinking fund) of the twelve largest cities in Canada in 1964. To improve
Edmonton's Debenture Debt
Edmonton's debt position several courses of action
Edmonton supports three major types of debt.
could be taken. One possible solution is to make greater
One is the self-supporting debt which is incurred by the five public utilities and the local improvement property
use of reserves and current revenue as a source of capital funds. This implies an increase to the taxpayers'
share debt incurred for the property owners by the City.
current tax bill and may not be desirable since the per
Utility revenues and frontage taxes levied on property
capita levy has in the meantime increased from $50.98
owners finance this debt. Civic utility debt increased
in 1947 to $108.80 in 1966. However, since Edmonton's
from 22 million dollars in 1956 to nearly 56 million
current per capita tax levy is below that of most major
dollars in 1965, while local improvements debt increased
Canadian cities, the City may be justified in increasing the tax levy to aid future capital financing. In addition,
from 18.7 million dollars to 34.5 million dollars in the
an examination should be made of all possible non-tax
same period.
revenue sources.. User-charges which are specifically related to certain services provided by the City should
Another type of debt is that incurred by the City
as far as possible cover the costs of providing such
to finance construction of roads, bridges, parks, recreational facilities and sewers, etc. This general and
services, by applying user-benefit criteria. In this manner
sewer system debt is repaid by the City from general
servicing of the general debt will not fall so heavily on
revenues and directly affects taxes. The need for
the mill rate.
additional bridges and roadways will greatly increase the
Edmonton's unusually high assessment in non-
general debt, while the sewer debt should decline in per
revenue producing property, including residential land
capita terms. This debt has increased from 41.5 million
(65.7 percent of total assessment in 1966) indicates a
dollars in 1956 to 95.9 million dollars in 1ยง65. Post war
shortage of industry and commerce. This unfavourable
inflation, capital improvements of a higher standard and
position could be improved by encouraging more
carrying out of deferred improvements accounted for the
industry to establish in Edmonton and by inclusion of
growth of this debt.
the Strathcona industrial area
.under Edmonton's
jurisdiction as recommended in 1954 by the McNally
The third type of debt is the net Public and Separate Schools debenture debt incurred for land purchases and
Royal Commission in its report on the Metropolitan
school construction. The net school debt is not charged
Development of Calgary and Edmonton. The
against the City as a corporation but rather against the
Commission emphasized that wide variation in per capita
taxpayer and property owner. This debt increased from
assessment existed in the Edmonton Metropolitan Area
20.5 million dollars in 1956 to 44 million dollars in
and that a balanced tax base would be more desirable
1965. Under existing Provincial-Municipal financing
for a more equitable distribution of the realty tax. The
arrangements the schools debt is expected to increase in
problem of inequitable distribution of assessment in the
the future in per capita terms due to the anticipated
Metropolitan Area still remains. With a view to the
large increases in school enrollment and rising education
future, a commission should be appointed once again to
costs. In recent years, however, the Province has
study the effects of possibly establishing a strong central
15.3
government for the purpose of providing efficiency,
proposed capital expenditures in light of community
stability, uniformity of service, sufficient land for
goals or General Plan objectives.
long-range planning and equity of taxation and assessment for the people of the Edmonton Metropolitan
Definition of a Capital Improvement Program
Area.
A capital improvement program is a long-range plan of capital expenditures extending over a period
Another possible source of relief to the City would
ranging from fifteen to twenty years. The program
be to fully transfer certain responsibilities to senior
provides a picture of work to be performed and financial
governments including medical services, hospitalization and welfare services.
estimates. The program also consists
of a capital improvement budget which covers the first five years of
the program and an annual operating budget. The more
During the past ten years the Province of Alberta
detailed five-year capital improvement budget will
has been reducing its gross public per capita debt, while
consider public improvements only, and covers facilities
the City of Edmonton debt has remained at a high level.
with a reasonably long life, large size and a fairly high
In comparison the gross public debt per capita of the
value.
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
The annual capital budget is the first year of the
608.67 in the same period. Perhaps no other statistic
capital improvement program and contains a detailed
demonstrates as clearly the need for a more equitable
list of capital expenditures and methods and resources with which to finance them. It is the vehicle which puts
distribution of revenues and responsibilities.
the capital improvement program into operation. CAPITAL PROGRAMMING
General Procedure in Implementing Edmonton's Capital Improvement Program
Introduction The City of Edmonton is currently on the verge of
The capital budgeting process or the implementation of the capital improvement program
the largest capital expenditures in its history. Roadway and bridge proposals, Civic Centre development, servicing of new areas, school expenditures, urban renewal and
originates with the preparation of a long-range physical improvements plan, in Edmonton's case referred to as
the maintenance of adequate utility services are some
the General Plan. Following review and approval of the General Plan by the Municipal Planning Commission
of the major items that will require financing. It is clear that present sources of revenue are inadequate to meet
and City Council, the Planning Department will review
all the City's needs and it is essential that the public
the General Plan with all the City Department Heads. On
receive the best value for every dollar spent. Since all
the basis of information received as to rate and direction
demands for new public facilities cannot be satisfied,
of growth and objectives of City development, each
good financial planning is necessary to ensure the
Department will prepare cost estimates of the desired
optimum allocation of resources within the financial
public improvements. Concurrently, the Finance Depart-
capacity of the City. Good financial planning will only
ment must prepare a long-range financial analysis of the
be achieved through the implementation of a
City's future revenue patterns.
sophisticated capital improvement program. Following completion of the departmental To date, the City has been preparing one-year
estimates and a financial plan, the Department Heads
capital budgeting programs for capital expenditures. In addition, in 1962 the City prepared a three-year
will transmit their requests to the Planning Department
departmental estimate and in 1965, 1966 and 1967
submitted. The responsibility of co-ordinating the long-
five-year capital expenditure estimates were prepared.
range estimates lies with the Planning Department in
In general, the capital estimates listed capital items
view of the close relationship between a capital improve-
which will then assemble and co-ordinate the estimates
projected by individual departments. While such a
ment program and the General Plan. In addition, the
listing is valuable in providing an indication of the
Planning Act requires that a general plan shall include
general level of future capital expenditures, the presently
"proposals relating to the financing and programming of
established procedure does not allow for the preparation
public development projects and capital works to be
of priority listings or a careful review of the City's
undertaken by the municipalities or other public
15.4
• • • • • • • • • • • • • • • • • • • • • •
• committees have analyzed the proposed capital program and made very worthwhile contributions to the achieve-
authorities having jurisdiction within the area included
• • • • • • •• • • •• • • ••
••
in the General Plan."
ment of a sound expenditure timetable and priority list for their city.
While co-ordinating the long-range estimates, the Planning Department must also prepare a tentative schedule of priorities keeping in mind such major
Upon completion, the proposed program will be
considerations as the City's financial position, the
reviewed by all the Department Heads for final
objectives of the General Plan and the relationship between the design and timing of projects and Provincial
alterations. Following the review the Planning . Department will prepare a final recommended program and will
plans. Where there is doubt as to the placement of items
then present the Program for review by the Board of
in the list of priorities, assistance will be requested from
City Commissioners and Council. After review and
the Departments and/or detailed cost-benefit studies will
approval by Council, Council will adopt, by bylaw, the
be prepared for the items. It should be noted that the
capital improvement program as part of the General
capital budgeting process should also allow for adequate
Plan.
representation by interested citizen groups. For example, The administration and preparation of the more
in some cities, notably Philadelphia, top flight citizen DIAG. 1 — PROPOSED CAPITAL IMPROVEMENT PROGRAM
FOR THE CITY OF EDMONTON
Every five years the general plan and the Capital Improvement Program are revised and extended five years
The first year of the
The capital improvement budget period covers five years.
capital improvement
Each year the ensuing year is updated and becomes the
program is the annual
annual capital budget while the capital improvement budget is extended one year.
capital budget
15.5
detailed five-year capital improvement budget should be
revenue fund are referred to as cash payments. Every
the responsibility of the Board of City Commissioners
year City Council allocates a certain percentage of
and the Planning and Finance Departments. Since the
current account revenues to repay capital expenditures
Planning Department will be responsible for the five-year
and in 1966 this amounted to 19.5 percent of current
revisions to the General Plan, it will similarly be in a
account expenditures, excluding utilities. A 100 percent
position to aid in staging to make recommendations for
pay-as-you-go policy in Edmonton is not feasible in
the five-year capital improvement budget. The Finance
view of the proposed volume and size of projects and
Department will be directly responsible for estimating
programs such as roadways and bridges, schools, utilities
the City revenues and expenditures and financial alternatives for the capital improvement budget and for its presentation.
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
The first year's total of the capital improvement
such debts that are created.
program or the annual capital budget will be prepared by the Finance Department and submitted to the Board
The greatest proportion of the future capital
of Commissioners for their review and eventual present-
improvement program will undoubtedly be supported by
ation to Council for approval.
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
The five year capital improvement budget may be adopted together with the annual capital budget, or may
and what proportion of the income is used to support
be adopted separately. Council may alter or adjust the
City government.
capital improvement budget as it sees fit and provide
As noted above, a large part of current revenues is
the necessary funds for the annual expenditures. Follow-
allocated to debt service charges. The rate of interest
ing approval by Council, the annual capital budget is
paid on City of Edmonton debt is determined in part by
implemented by the Board of City Commissioners and
the City's credit rating; to the present time this rating is
the Departments.
favorable and the primary criterion applied in borrowings was the maintenance of this rating. This rule will no
In summary, capital programming emphasizes
longer effectively establish an upper limit to borrowings.
planning, and is a valuable technique for centering attention on classes of expenditures which are difficult
A review must be made as to the desirable level of
to evaluate and finance. A capital budgeting program for
debt service charges in relation to total current
the City of Edmonton will provide a means of assuring
expenditures and a program established to aim for the
that projects will be executed in accordance with
relationship shown to be desirable.
predetermined priorities of need as well as the ability of the City to pay. In the long run, the capital budgeting
It is recommended that such a study be undertaken
process will aid in keeping the total cost of regular
for a separate report to Council for consideration and
operations and improvements within limits of sound
discussion.
finance planning. Community resources can be allocated
A long-range objective for the City should be that
in the best way. Furthermore, the capital budgeting
it pays off more principle than interest payments with
process, as part of the long-range plan, will enable the
the ultimate object to eliminate capital debt.
general public to plan their own investment in the community when they can see a clear and explicit
Objectives of Capital Programming
statement of public projects to be built in future years. 1. To provide the City of Edmonton with an
More than ever before private projects are being influenced by public programs; good financial planning will
overall view of facility needs and improvements,
create a sense of common objectives for private and
their locations and priorities and their financing.
public interests.
2. To develop the most desirable program of capital spending within Edmonton's financial
Financing the Capital Improvement Program
capacity. The City administration will thus
Basically, there are two methods of financing that
be in a much better position to make decisions
the City of Edmonton presently uses, cash payments
authorizing capital spending and foreseeing
and time payments. Payments made from the general
any financial difficulties.
15.6
• • • • •
• • ••
• • • • • • • • • • • •
projects and make observations as to the
3. To plan and co-ordinate the various public works and improvement projects with one
feasibility of the suggested program in light of existing revenue sources.
another and at the same time to allow adequate time for the preparation of engineering draw-
4. The capital improvement budget should list: all
ings, etc. 4. To provide a schedule which will aid private
proposed capital projects, accurate cost estimate of each project, definite priority dates,
interests in co-ordinating their own projects
means of financing, agencies responsible for
with the City of Edmonton programs.
carrying out the projects, all projects scheduled in the Capital Improvement Program and dates
5. To maintain the most favourable credit rating for the City by arranging annual capital
of construction and indicate generally the impact of the budget on current account
expenditures and borrowings within limits
expenditures and the property tax rate.
determined by the rating agencies, in order to 5. A detailed financial plan should be established
provide a source of funds at a reasonable rate
indicating the sources of funds for the capital
of interest.
improvement budget and it should carefully analyze proposed expenditures in relation to debt structure, tax base and general wealth of
Principles of Capital Programming
the City. 1. The Commission Board should be responsible for the preparation of a capital improvement
6. The policies, procedures and performance of the
program, with the establishment of an effective procedure within the administration to accom-
capital improvement program should be subject
this,
through the establishment of
appropriate
administrative procedures in-
corporating
advanced budgetary techniques.
plish
to annual review. 7. The annual capital budget prepared by the Finance Department should show each contemplated project in sufficient detail for Council to properly evaluate its worth to the community,
2. The capital improvement program should complement the goals set out in the General Plan,
its cost and the implications such as expenditure
and should reflect revisions and changes made
may have on the annual operating budget of
to the General Plan.
the City. The capital budget should portray planning, co-ordination of purpose and resources
3. The capital improvement program should out-
and its effect on subsequent operating budgets.
line in general form, as related to anticipated development of the City: all major capital
8. The capital budgeting process should allow for
projects, proposed priority dates, approximate
adequate representation by interested citizen
cost for each project, source of funds for the
groups.
15.7
•• •• •• •• •• •• •• •• •• •• ••
Chapter XVI
URBAN DESIGN store front signs and all forms of street
INTRODUCTION
furniture.
Rapid growth creates numerous shortcomings elements and to the creation of a strong structure and
5. To employ the best design for municipal traffic signs and street furniture and to require
identity. Edmonton's downtown area has been shaped
placement of all utility wires underground.
where little emphasis is given to aesthetic values, unifying
and circumscribed by natural features, by a grid pattern
6. To express regionalism in design by making optimum use of the character of the landscape,
of streets and blocks and by railway yards. However, natural features are no longer major factors in
vegetation, climate and natural resources.
determining the City's physical form and growth. The physical form is now constantly being altered by new
7. To eliminate or redevelop blighted and offensive
buildings, roads, bridges, functional areas and cultural
commercial, industrial and residential areas.
values. We have the necessary resources and the
8. To provide for the non-physical and cultural
opportunity to embrace these elements into a unified
aspects of design such as annual parades and
visual expression and to create an exciting image for
similar activities, historical preservation and
Edmonton. A sharper sense of visual order, scale and
continuity and symbols expressing the progress
physical beauty can be made evident.
and character of Edmonton.
A visual design concept for Edmonton is an
9. To adopt a publicly sponsored program with
essential part of the General Plan requiring continuous
tools to guide the design of all types of con-
review and adjustment. It must focus attention upon
struction, both public and private, in the best
existing virtues and identifiable parts of merit present
locations while, at the same time, demanding
in Edmonton.
good design as a way to achieve beauty and order in Edmonton.
The new design can be realized through
10. To create and enforce up-to-date building codes
co-operation between private and public action with
and zoning legislation.
guidance from public policy and leadership. However, we must be knowledgeable of what is good and insist on
PRINCIPLES FOR THE NEW DESIGN
the best without limiting ourselves to rigid controls and
1. The Creation of a Beautiful City-scape
ideals.
a. Buildings and open spaces should be
OBJECTIVES OF THE NEW DESIGN
considered in relation to the natural topography, to each other and to the scales
1. To ensure that Edmonton is an efficient and
of the pedestrian and the pedestrian and
enjoyable place for the people who live and
the vehicle.
work in it and for those visiting the City.
b. Each individual building or group of build-
2. To establish a sense of order with reasonable
ings should be designed as part of the total
variety and contrast, visual unity, beauty and
urban composition:
scale to streets and buildings and to relate them
â&#x20AC;&#x201D; to accomplish this the designer must
to open spaces.
examine the area in which he is working and relate his building to the worthwhile
3. To seek the best relationship within and bet-
visual characteristics of that area.
ween major use areas.
â&#x20AC;&#x201D; an assessment of the type of terrain to be
4. To adequately regulate the use of billboards,
16.1
building or landscape element at the
built upon must be made since each individual piece of land will lend itself to
focal or terminating point of a long
a design which will express the best
street.
relationship between the building and
varying the relationship of a building or
site. The most outstanding visual and
groups of buildings to the normal building
physical feature of Edmonton is the River
line to create a variety of spatial
Valley, its bluff and the ravines. These
experience.
handsome topographic features must be respected and enhanced. The bluff should be landscaped along the River and should
b. Many streets in Edmonton are congested with too much traffic, have too diverse a
offer observation points, interesting sky-
mixture of buildings and uses and lack visual
lines and pleasant drives.
and functional coherence. To give these streets an entity and order without rigidity,
— size and orientation of buildings can be
unifying devices should be applied:
arranged for the best possible visual effect. Similarly, color and textural
— control may be exercised as to the length
characteristics of the landscape and foliage
of street frontage permitted to any single
covering the bluff can be advantageously
use in strip commercial areas.
used to enhance the buildings.
continuity between buildings and open
— apart from the River Valley and the ravines, the remainder of Edmonton
lighting, sidewalk patterns, awnings, rows
consists of a level plain. The city-scape
of trees and architectural design. Where
must therefore compensate for the lack
the buildings are arranged too rigidly, a
of natural features. Development must
contrasting or free disposition of trees
create the
spaces can be achieved through street
missing landmarks and
can provide an element of relaxation.
punctuate the horizon with vertical
Large trees should be used in planting
accents, thereby making the components
programs wherever possible.
of the City more comprehensible. Higher — small blocks can be consolidated into
buildings should give visual expression to those portions of the urban fabric having
larger blocks for simpler traffic circulation
the greatest intensity of activity.
and streets not essential for traffic could be turned into pedestrian-ways or
— the appearance of individual buildings should be considered• from the actual
developable area.
vantage points from which they will be
in high density downtown pedestrian
seen and should be designed with utmost
areas rows of tiny shops, bus shelters, telephone booths, etc. can be used to
care.
screen as well as to provide continuity for pedestrians passing surface parking
c. The City must offer a continuing variety of stimulating visual experiences for both the
lots and multi-storey parkades.
pedestrian and the motorist. Skywalks, elevated streets and public viewing platforms
space within buildings should bear a
on major buildings could provide unexpected
direct relationship to the immediate out-
viewpoints for architecture and movement.
side environment, whether it be streets or plazas. For example, ground surfaces can be of a similar texture both inside
2. Toward Attractive City Streets
and outside a building.
a. Edmonton's streets of intensive activity should have both visual and physical punctuation as well as vistas to give them a
c. Street furniture is one of the most con-
feeling of enclosure, fluidity and entity. This
spicuous elements of a street and often is the
may be achieved by:
difference between making a street pleasant or unattractive:
— introducing visual interrupting devices — greater emphasis must be placed on the
such as skywalks or by placing a large
16.2
• •• • •• • • •
•• •
• • •
•• •• • ••
grouping and location of small elements such as traffic signs, phone kiosks, litter
— densely developed shopping streets with large pedestrian volumes should be con-
containers, mail boxes and the like which
verted into malls or walking zones if
are currently scattered indiscriminately
they do not seriously impede traffic
along the City streets giving an extremely cluttered and untidy appear-
circulation. b. Walking in- the downtown should be as much
ance.
a pleasure as strolling in a park or country.
— careful control over billboards and store
Some devices for making downtown
front signs should be exercised, particularly near residential and park
Edmonton more enjoyable for the pedestrian are:
areas.
— protection from inclement weather could
d. The City should encourage owners of run-
be given to the pedestrian ranging from
down buildings to rehabilitate or replace
the simple but effective awning to the
them with up-to-date structures. Some build-
fully enclosed and acli mati zed promenade.
ings could be vastly improved by mere steam cleaning, sand blasting and painting.
them mall areas, rest areas and other
Old buildings worth saving should be im-
attracting features.
Enclosed walkways could contain within
proved in a manner that will continue their
— spacious
usefulness while maintaining their character.
sunny
squares,
outdoor
restaurants for summer use and arcades should be part of the pedestrian-way.
e. Edmonton must have a thorough and regular dirt and rubbish cleaning program. Removal
Infra-red lamps could be installed to keep these pedestrian areas comfortably
of snow, sand and mud in the spring should
warm and encourage winter shopping.
be undertaken as early as possible. Lane marker lines, crosswalks, lamp posts, benches
— landscaping for pedestrian and rest areas
and garage receptacles should be painted
should be of the highest quality and
regularly and kept clean for safety and
design.
better appearance. — meeting
places of some historical
significance which are removed from
3. Designing the Downtown for the Pedestrian
traffic should be provided near major
a. Pedestrian movement must be convenient
shopping, entertainment and dining areas.
with a minimum number of interruptions to movement. Some devices for making
— promenade or pedestrian areas should be
pedestrian movement more efficient in
especially well illuminated to provide the
Edmonton are:
pedestrian more security in the evening. Besides making the downtown safer at
— sidewalks of adequate width.
night, night-time illumination can trans-
— segregation of pedestrians and motor
form the downtown into a festive place
vehicles. Underground, surface and over-
to which people will want to come;
head pedestrian concourses connecting
lighting can also enhance architecture
parking, shopping and work areas will
and stimulate commerce.
accentuate downtown's attractiveness for
c. Due to the high cost of downtown land,
the pedestrian.
private business must be encouraged to — the provision of pedestrian-ways through-
provide small plazas, squares and courts
out the interior of major blocks in office
within their development schemes. In order
and retail shopping areas. This technique
that these outdoor plazas do not lose their
would be especially appropriate in areas
popularity during the cold winter months,
where sidewalk capacity in the perimeter
they should be designed so that some form
of the block could not be feasibly in-
of relationship exists between them and
creased.
indoor spaces of buildings. Buildings like the
16.3
Royal Bank Building on 101st Street and
and planted compactly with trees, bushes
Jasper Avenue have within them indoor
and grass. These walls would be an obstacle
meeting spaces, but they lack unity with
to jay-walking across the road and would
the out-of-doors.
provide the pedestrian in residential areas with safe, healthy and pleasant walking
4. Quality in Parking Design
conditions.
a. Surface parking reduces the amenities of an d. Large existing grid pattern areas could be
area, therefore, curb-side parking should be
attractively broken up with parks, new
severely controlled in certain parts of down-
roadways and comprehensive apartment de-
town Edmonton, particularly in the Civic
velopments and still maintain continuity
Centre. Where surface parking lots are an
with adjacent areas.
interim use they should be landscaped, paved and effectively screened pending con-
e. Lot sizes and shapes often determine the
version to other uses. An intelligent use of
appearance of a neighbourhood and should
trees, shrubbery, flowers and rock groupings
• be of varying sizes in order to encourage
could be applied skillfully to improve many
variety in design and sizes of homes. Great
unsightly parking lots in Edmonton. Both
pains can be taken to design streets but little will be achieved if there exists no
the City and private developers can afford some "luxury" and, at the same time, civic
relationship between buildings, street design
pride.
or variety in design. f.
To
narrow streets should be restricted to one
add variety to residential neighbourhoods, blocks should vary in size and
side of a street. Residents should be en-
shape and should contain focal or accent
b. On-street parking in residential areas having
couraged to use off-street parking to enhance
points such as churches and apartment
the appearance of the street and for safety
building clusters near shopping centres.
and smoother traffic flow.
g. Detailed site design, such as the placement of buildings, should consider the following
c. Parking structures should be of good design and should not lower the aesthetic standards
regional influencing factors:
of the surrounding buildings. Parking garages
— the angle of the sun and prevailing winds
should preferably be placed underground
should be studied in relation to building
and their roof decks covered by buildings or
massing and placement. In Edmonton,
converted into green spaces and plazas.
where the sun is the hottest during the late hours of a summer afternoon it will
5. Designing Pleasant and Distinctive Residential Areas
be desirable to shield this light whereas during winter, it will be
a. Edmonton has been fortunate to inherit a
desirable to
receive some direct sunlight.
few residential neighbourhoods characterized by large trees. These trees give beauty to
— prevailing breezes should be studied to
their streets, providing shelter and privacy
determine the location of building
for the homes. The City must do everything
entrances and balcony locations.
possible to protect them. h. Apartment development should be very care-
b. A primary element to consider in designing a neighbourhood
is
the
character
fully controlled and should be permitted
of
only in designated areas. Existing older
topography. Topography will generally
housing in good residential areas of
dictate the type of streets, whether cur-
distinctive character establish a character
vilinear or rectilinear which are placed into a neighbourhood.
and flavour of their own and this quality must be preserved and protected by a
c. Residential areas could be screened from
definite policy from apartment intrusions.
the noise and fumes of heavy traffic by
Diversity will be maintained in this manner
banks of earth sloping towards the road
and the citizens of Edmonton will have a
16.4
• • • • • •
• • •• •• •
•• •• •
• • •
choice of accommodation in a variety of areas. 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. b. Landscaping of industrial areas should be simple
— 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. 8. Creating an Image for the City
and bold and existing trees should be utilized. Where the planting of trees is necessary, they should be grouped to form dense masses in order to contrast with the usual lineal road system and mass of buildings.
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:
c. 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.
— 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.
d. Scattered industrial and service uses should be persuaded to move to industrial estates if they are nonconforming with the surrounduses.
— 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.
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.
b. 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.
— historic structures are those associated with important events, people, institutions or public history.
c. 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
— 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.
Edmonton.
16.5
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Chapter XVII
IMPLEMENTATION INTRODUCTION
This review may clarify, amplify or adjust certain policies but should maintain, where possible, the overall
The General Plan
objectives and principles of the Plan. The Edmonton General Plan contains plans, recommendations, objectives and principles for all phases of
The Legal Status of the General Plan
urban development. The foregoing sixteen chapters have Planning in Alberta is under the jurisdiction of the
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
Planning Act (1963) which outlines the legal status of the General Plan. The Act (s.95-1) states that:
order to make these various elements a meaningful guide to development, an overall program for their
A council may resolve to prepare a general plan describing the manner in which the future devel-
implementation must be developed. The realization of the objectives outlined in the General Plan for Edmonton
opment or redevelopment of the municipality may
is dependent upon the tools available for its implementat-
best be organized and carried out, having regard
ion and upon how effectively they are utilized. Effective
to considerations of orderliness, economy and convenience.
implementation of the General Plan can best be achieved through the use of six components: a General Plan
It is obvious that the Plan or a condensation of it must
Bylaw, zoning, land subdivision control, development
be adopted by bylaw if it is to effectively perform its
schemes, capital improvement programming and urban
intended function. Section 97, subsection 1 of the
renewal.
Planning Act makes provision for the adoption of the Plan by Council.
The General Plan contributes to the future development of Edmonton primarily in two ways. Firstly, it
After the General Plan is adopted, City Council
provides a summary of important objectives which the
may exercise development control within any areas of
City should attain or attempt to attain during the Plan
land included in the General Plan but must enact a
period. Included with each set of objectives are a number of principles which outline the best means of
zoning bylaw for all areas covered in the General Plan in
achieving the objectives. Secondly, the Plan points out
which development control is not exercised (s.99-a,b).
deficiencies in present City regulations. It is beyond the
It is stated in the Act (s.133-2) that when a council
scope of this document to remedy these faults but their
adopts the plan it must adopt it in its entirety including
correction is essential if the objectives of the General
all its maps and documents. Furthermore, any incon-
Plan are to be attained. For example, the preparation of
sistency between the General Plan and the Regional
a Parks Master Plan and the revision of present apart-
Plan must be corrected (s.79-b).
ment zoning regulations are two such deficiencies which The enactment of the General Plan Bylaw involves
should be rectified.
the submission of the Plan, amendments and Bylaw to the City's development officer who shall immediately
The Plan is a dynamic instrument of broad public
advise Council with respect to the content of the Bylaw
policy which requires constant review and revision when and where necessary. It should be completely
and its conformity with the Planning Act (s.130-1). The
re-analyzed every five years as required by the Planning
City must officially advertize the Plan, hold public
Act (s.98) which states that "The council shall com-
hearings concerning it and provide copies at a reasonable
pletely review the general plan once every five years after its adoption and may, by bylaw, amend the plan."
cost for the use of the general public. Council may amend or repeal the General Plan Bylaw (s.134-1).
17.1
The Plan's_ objectives, principles and standards
growth. The adoption of such a Bylaw is essential to
which are established to guide future development are both literate and graphic and are, together, the City's
give formal status and recognition to Council's role in directing the development of the City. The General Plan Bylaw will have two broad functions. Firstly, it will
official policy. However, other data and material which — are not of this kind or are of a historic nature also
convey a concept of the physical form of the future
appear in this document as illustration, background,
City. Secondly, it will outline the pertinent objectives,
support or explanation to the Plan. These are not official
policies and programs of City Council by which this
statements of policy but rather are necessary for the
concept may be achieved. The Bylaw sets out the
clarity, understanding and completeness of an acceptable Plan document.
City's broad, long-term plan of development. It does not govern particular sites directly but rather expresses Council's intentions.
Objectives for the Implementation of the General Plan After the General Plan is published, extensive
1. To ensure that the necessary tools for the implementation of the General Plan are avail-
discussion and revision of the -document will be undertaken by the Municipal Planning Commission, City
able.
officials, businessmen and interested citizens prior to the
2. To ensure that various sections of the Plan are
Plan's presentation to City Council. At the same time,
implemented at the proper time and in the
a General Plan Bylaw will be prepared to enable the
proper place as outlined therein.
adoption by City Council of the entire General Plan document with any amendments to be contained in
Principles for the Implementation of the General Plan
adopted appendices. The final step will entail detailed discussion of the Plan by City Council after which it is hoped that the General Plan with amendments will be
1. It is essential that a General Plan Bylaw be adopted in which the objectives and principles
formally adopted by bylaw. The purpose of this Bylaw
contained in the General Plan are approved.
is to describe the manner in which the future develop2. Alterations and additions to the City's land
ment and redevelopment of the City may best be
use pattern as outlined by the 1981 Land Use
organized and carried out, having regard to
Plan and its accompanying text should be
considerations of orderliness, economy, convenience and
added to the zoning maps.
the goals of the community so as to achieve a functional and pleasant physical environment for the citizens of
3. Suggested changes in the Zoning Bylaw, as
Edmonton.
outlined in this Plan, should be investigated and, where necessary, required alterations made.
Zoning 4. The subidivision of land should be undertaken The Zoning Bylaw is an immediate set of
in accordance with the objectives and principles
regulations designed to cope with development problems
contained within this Plan.
of the present and to protect the land that will be 5. New or expanded physical facilities for the
developed in the future. It offers property owners
City which are large, expensive and relatively
assurance of what they can do with their property and
permanent should be provided through capital
what may happen on their neighbours' properties.
improvement programming as outlined in
Zoning is the division of a community into areas for the
Chapter XV.
purpose of regulating the use of land and buildings, the
6. Aging and deteriorated areas of the City should
height and bulk of structures, the proportion of the lot
be rehabilitated or redeveloped through urban
that may be covered by them and the density of
renewal schemes.
population that they may house. The enactment of the zoning ordinance and its
INSTRUMENTS OF IMPLEMENTATION
subsequent administration are the legislative and
The General Plan Bylaw
administrative processes for carrying out the land use
As mentioned earlier, Provincial legislation permits
provisions of the Plan. Provisions for zonihg and
Council to adopt a General Plan Bylaw to enable the
development control for areas covered by the General
utilization of the Plan as a guide for future urban
Plan are included in the Planning Act (s.99-a,b):
17.2
• • • • • • • • • • • • • • • • • • • • • •
When a general plan has been adopted, the council
a desirable pattern in accordance with the Plan and
(a) may, at any time thereafter, exercise or
Zoning Bylaw. An important part of the implementation
continue to exercise development control within
of the General Plan is the preparation of detailed,
any areas of land included in the general plan. .
comprehensive development plans for new subdivisions'
and (b) shall immediately thereafter proceed with the enactment of a zoning bylaw to include those
and replot areas. These plans enable detailed subdivision
areas of land within the general plan in respect of
layout and zoning to be adopted as a part of the Plan.
which development control is not exercised.
Development Schemes
The adoption of the General Plan Bylaw will result in a revision of the present Zoning Bylaw only where review
Section 114 of the Planning Act states that
or revision is called for by the Plan or when a section
Council, by bylaw, may adopt a development scheme
of the Plan is to be implemented.
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
The Planning Act also provides development control procedures to guide growth during the interim
scheme may:
period when the Plan and the Zoning Bylaw are being (a)
prepared and zoning caveats to provide land use control
provide for the acquisition, assembly, consolidation, subdivision and sale or lease by
in lieu of any other land use control.
the municipality of such land and buildings as are necessary to carry out the develop-
The purpose of zoning is to assist in orderly
ment scheme,
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
(b)
reserve land for future acquisition as the site or location of any public roadway, service
preserve the character of the neighbourhood where
or building or for a school, park or other
possible; it should exclude new uses which are pre-
open space and make such arrangements
judicial to the restricted purposes of the area; it should
with the owners of the land as will permit
gradually eliminate non-conforming uses; it should
its acquisition and use for those purposes,
permit spot zoning only where it is in the public (c)
interest; it should stabilize and protect property values
specify the manner in which any particular
and uses from sudden or haphazard changes; and it
area of land is to be used, subdivided or
should consider the value of aesthetics.
developed, and regulate or prohibit the construction
of buildings that would
interfere with the carrying out of the
Land Subdivision Control
development scheme, and The process of land subdivision review and (d)
approval is a major tool for the accomplishment of
make available any land for agricultural,
Edmonton's General Plan. Every time a new land
residential, commercial, industrial or other
subdivision with its streets, blocks, lots and open spaces
uses of any class at any particular time.
is laid out, a piece of City development and planning has The development scheme must describe and set out the manner in which the scheme is intended to
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
implement a proposal, the land and owners affected by
of land into smaller parcels. Subdivision controls set
the scheme and the details of the scheme including the
forth the community's policies regarding the acquisition
type of development, the land to be reserved and the
of sites for public uses, paving streets, street and lane
manner in which land affected by the scheme is to be
widths and development standards, etc. Properly
subdivided (s.115).
developed and administered subdivision regulations Development scheme bylaws are powerful means
ensure the integration of each new subdivision into the
by which the General Plan can be implemented as considerable flexibility may be maintained within the
overall land use pattern of the community.
Subdivision and Transfer Regulations in the Planning
The control over subdivision as outlined in the ;
terms of each scheme. It is possible to employ these bylaws in many diversified ways, for example, future
Act enables roads and parcels of land to be laid out in
freeway rights-of-way can be protected by such bylaws
17.3
••
to ensure that costs of land acquisition will not be
the City. Also outlined is a district plan process for the
unnecessarily increased by new development which
examination of these older areas which is considered
could interfere with the proposed route. Development
most appropriate in the Edmonton situation. Suffice it
scheme bylaws can also be used to create better
to say here that plans and techniques such as these are
standards of comprehensive development throughout
vital to the implementation of the General Plan for
the City. This development could take the form of an
those areas of the City subject to blight or in danger of
apartment complex, an apartment-shopping centre com-
becoming deteriorated.
plex and so on. Development scheme bylaws may be
Outline Plans
used to implement a great variety of General Plan proposals and are a valuable means of General Plan
The General Plan contains a vast array of objectives
implementation. To date, only two bylaws of this type
and principles concerned with the manner in which the
have been passed but, in the future, it is expected that
City should develop or redevelop. Needless to say, many
greater use will be made of these schemes.
different implementation techniques are both necessary and essential to translate the broad policies of the
Capital Improvement Programming
General Plan into forms useable on a short term basis. Just as the district plan process outlined in Chapter XI,
Capital improvement programming is a means by which public construction is used to encourage the
Urban Renewal is necessary to properly implement the
realization of the objectives and principles contained within the General Plan. The whole range of public
Plan in older areas of the City so, too, is an outline plan
works and capital expenditures is fundamental to the
expansion areas.
process required to implement General Plan policy in
achievement of the Plan, but, until the General Plan has been prepared, there is no basis upon which the long-
Basically speaking, an outline plan is a very broad land use and transportation plan which establishes the
range capital improvement needs of the community can be intelligently set forth. A sound capital budgeting
distribution of major uses throughout an expansion area
process is essential if there is to be assurance that the
with the fundamental objective of providing a framework
City's capital funds are being spent constructively and
upon which, detailed subdivision plans may be based.
not just in response to expedient demand. Chapter XV
Such a plan thus ensures that major uses such as schools,
outlines objectives and principles in regard to capital
shopping centres, arterial roadways, etc. are located in
improvement programming for Edmonton but the des-
an orderly and economic manner and in a manner
cription of the program itself will require a separate
consistent with the needs of the neighbourhood, district
study.
and City. An outline plan, therefore, is simply a translation of the broad policies contained within the General Plan to a more refined and intimate scale and
Some elements of this Plan cannot be implemented without direct action by the municipal government to
provides a most important link between the General
acquire property and construct public works. The Plan
Plan and detailed subdivision.
requires these expenditures to be programmed in a longrange capital improvements program. The purpose of
Outline plans are prepared for both residential and
the capital improvement program is to present schedules
industrial expansion areas. As indicated on the revised
of acquisition, major construction and alteration of
version of the 1981 Land Use Plan, outline plans have
facilities for Public use over the Plan period. A capital
been prepared or are in the process of preparation for
improvement program should indicate the relative
six residential expansion areas and three industrial areas.
importance of the capital expenditure projects, list the
These plans are most important in ensuring that the
various improvements which should be undertaken, set
policies of the General Plan are properly utilized in the
forth an order of construction based upon community
preparation of planning studies for growth areas of the
needs, list individual and total estimated project costs
City and as such are a most important means of
and indicate the effect of individual and total estimated
implementing the General Plan.
costs upon total expenditures and tax rates.
The Need for Co ordination and Administration -
Urban Renewal
Implementing the General Plan raises a major
Chapter XI outlines various techniques which may
administrative question, namely - how can effective
be utilized in the preparation of plans for aging areas of
co-ordination be achieved between the municipal
17 4
• • • • • • • • • • • •• • • • • • •
•
agencies which, in one way or another, regulate the use
different types of planning projects. For example, the
of land?It is essential that the regulations or provisions
method of citizen participation in the outline plan
of the Plan be administered by the appropriate depart-
process for new areas would, of necessity differ greatly
ments of the City on a day-to-day basis. To administer
from that in the district plan process which involves
the Plan in such a manner requires the need for inter-
older areas. Effective citizen participation in planning
departmental consultation and co-ordination plus a
studies will most certainly necessitate an increase in the
thorough understanding of the contents of the Plan
time, energy and cost of such studies and will also
by all departments concerned with Edmonton's growth
require some adjustments in the manner in which the
and development. Once the General Plan has been
administration reports to City Council and the public.
adopted by action of Council, the formation of an
The exact extent of these changes, however, will only
administrative organization to direct and co-ordinate
be determined after a full . review is completed and new
the daily inter-departmental decisions and operations
methods of citizen participation investigated in actual
leading toward the achievement of the goals and
project preparation situations. The following objectives
objectives of the Plan is imperative.
and principles are suggested as general guides to citizen participation which may immediately be followed but final and more specific programs can only be evolved
THE ROLE OF CITIZEN PARTICIPATION IN THE IMPLEMENTATION OF THE GENERAL PLAN
after their comprehensive review and after gaining greater experience in this complex area. This study, by
The ultimate success of the General Plan depends
its very nature, will be a lengthy and time consuming
upon public understanding, interest and support. While
undertaking if it is to achieve a truly effective program of
the responsibility for transforming the Plan into public
citizen participation.
policy rests with the local government, a truly effective
Objective of Citizen Participation
program of implementation must include voluntary co-operation of Edmonton's citizens. The people must
1. To encourage and facilitate effective citizen
realize that the basis of this Plan is the health, welfare,
participation at each stage of the planning
beauty and enjoyment of the community as a whole.
process.
When citizens of a community fail to understand the reasons for specific, as well as general proposals, positive
Principles for Citizen Participation
action is rarely attainable. This understanding can be achieved by clarifying and outlining the basic objectives
1. Specific planning programs should include pro-
of the Plan at public meetings, through newspaper
cedures whereby interaction with citizens can take place in order that the values, needs and
articles and through exhibits, talks and panel discussions.
goals of the community may be determined and embodied as an integral input into the study.
Widest possible publicity should be given the Plan prior to its adoption by Council. This carr best be
2. The results of the analysis of the survey stage
achieved through a summary brochure describing the
of the planning process, which would include
General Plan being distributed to every household in
an assessment of community desires, should be
Edmonton. By this action it is hoped that the citizen
made available to the community together with
will become more aware of the value of planning in
alternative objectives and development concepts
improving the physical environment of the City to make
for the study area. This will help stimulate and
it a better place to live. Public awareness and under-
guide constructive public participation into
standing of Edmonton's General Plan should result in
determining the constraints and opportunities
active support of the Plan and the implementation of its
of different courses of action and, at the same
policies.
time, enable the community to achieve continual readjustment of values, needs and goals.
Traditionally, citizen participation has only been actively encouraged in the -plan presentation stage of
3. Prior to the adoption of a plan, public hearings
the planning process. A comprehensive review of pro-
in the affected community should be held
cedures should be undertaken to estabash a system
involving
through which the community at large can
representatives of the City. This would provide
constructively interact in all stages of this process also
an opportunity for local residents to express
to determine particular techniques of participation in
their opinions before the adoption of a plan.
17.5
both
elected
and
technical
4. When an adopted plan is implemented, local
5. The post plan analysis and feedback stage of
citizens should be given continued opportunities
the planning process should receive significantly
to scrutinize and comment on plan progress,
more attention in order that the full results of
and changes in implementation procedure made
implemented plans may be properly reviewed,
accordingly where necessary.
assessed and used for future guidance.
17.6
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