Edmonton (Alta.) - 1973 - Regional parks study_Edmonton region (1973-01-25)

REGIONAL PARKS STUDY EDMONTON REGION

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EDMONTON PARKS AND RECREATION

PREPARED

BY:

PLANNING AND RESEARCH SECTION — JANUARY 1973

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REGIONAL PARKS STUDY

prepared by PLANNING AND RESEARCH DIVISION EDMONTON PARKS AND RECREATION January 25, 1973

Study Group Members: T. Drinkwater, Department of Lands and Forests, Parks Branch R. N. Giff en,

Edmonton Regional Planning Commission

F. Michna,

Edmonton Regional Planning Commission

D. Adams,

Edmonton Parks and Recreation Advisory Board

E. C. Brown,

City Planning Department

S. Maslo,

Edmonton Parks and Recreation

B. Prasad,

Edmonton Parks and Recreation

D. Rudge,

Edmonton Parks and Recreation

TABLE OF CONTENTS

Page 1

Recommendations History

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II

Definition of Regional Parks

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III

Inventory of Existing Sites

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IV

Justification of Need

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V

Site Considerations and Recommendations

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VI

Administrative and Financial Responsibilities 20

VII

Summary and Conclusions

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APPENDICES

Appendix A - Chapter 7 of the Edmonton Parks and Recreation Master Plan 1970 - 1980 Appendix B - Big Lake Study Appendix C - Big Lake Recreation Area - Policy Statement

MAPS

Regional Parks

RECOMMENDATIONS

1. That the City of Edmonton request the Province of Alberta to assist in the establishment and funding of regional parks development within the City or within the boundaries of the Edmonton Regional Planning Commission.

2. That the City of Edmonton initiate the preparation of an agreement with the municipalities within the Edmonton Regional Planning Commission boundaries and the Province of Alberta to establish a regional parks authority. Such an agreement should proceed at this time on the basis of existing legislation.

3. That the City of Edmonton request the Province of Alberta to prepare new or amended legislation which will allow for the most effective creation and operation of a regional parks authority.

4. That as an interim measure, the City request the Regional Planning Commission to expedite the analysis of potential regional parks sites and take the necessary steps to protect these sites for future recreation development.

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I HISTORY

Over the years the need for regional parks as part of the system of recreation sites serving the people of Edmonton and region has been recognized and discussed a number of times.

In 1963, the Edmonton Regional Planning Commission published a park and recreation study entitled Metropolitan River Valleys. This study recognized the regional park as an important component of any system of park facilities serving the residents of Edmonton and region. It also recommended the further analysis of several sites which had the potential for such a park.

This has not yet occurred. The Metropolitan River Valleys study saw regional parks as one component of a lineal park and recreation system within the North Saskatchewan and Sturgeon River Valleys.

In 1965, the Edmonton Regional Planning Commission prepared a preliminary report on Big Lake in which a park development of the type which would constitute a regional park was considered.

The City of Edmonton General Plan outlines regional parks as a component of the park system required to meet the recreation needs of Edmonton's population.

The City of Edmonton Parks and Recreation Master Plan 1970-1980 made the following recommendations regarding regional parks:

That selected sites outside the existing city limit and within metropolitan recreational zoning in the North Saskatchewan and Sturgeon River Valleys, the south portions of the Whitemud Blackmud Ravine system and the margins of Big Lake, be purchased immediately and designated for future regional park development.

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That the City of Edmonton actively encourage control of recreational resources in the Edmonton region, and to this end encourage additional protective legislation.

That the components of a regional park system listed in Chapter 7 of the Edmonton Parks and Recreation Master Plan be adopted as the basis for the preparation of a regional park plan. (see Appendix A)

That the classification of regional parks and facilities listed in Chapter 7 of the Edmonton Parks and Recreation Master Plan be adopted as a basis for recreational zoning under a regional parks system. (see Appendix A)

That a regional parks authority be established to include representatives of all levels of government; and that the City actively encourage the formation of such an authority.

The Master Plan views regional parks as essential to meet the recreation needs of the growing urban population and to preserve natural and scenic land features from enroachment by non-compatible uses.

In August of 1971, a brief by the Edmonton Regional Planning Commission relative to the future water levels of Cooking Lake and Hastings Lake made the following recommendations:

Any proposal for input of water into the Cooking-Hastings Lake system should be considered in the broad regional context and should be developed as part of the region's recreational plan.

If the proposal is considered favourable, action should be taken immediately and coincidentally to safeguard and to augment the public

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-4 and private recreational benefits of such a scheme.

Consideration should be given to the improvement of the total watershed area in order that a more complete range of recreational benefits may accrue to the region's population.

Again, the type of recreation development considered would serve the City of Edmonton and region and would therefore constitute a regional level facility.

The Preliminary Regional Plan, Metrololitan Part, adopted by the Provincial Planning Board on April 7th, 1972, recognized the regional recreational assets afforded by the river valleys in the Edmonton area and the need to conserve these. For this reason, the North Saskatchewan River Valley, the borders of Big Lake and parts of the Sturgeon River Valley were zoned, Metropolitan Recreational. This zoning is designed to conserve the natural areas along rivers, creeks and ravines for active and passive recreation and scenic purposes; to encourage the maintenance of continuous open spaces along major channels and to preserve the stability of the valley banks; to provide permanent buffers between incompatible land uses; and/or deter further subdivision and consequent high costs of reclaiming the land. This zoning provides the basis for the development of a system of regional parks within the river valleys and ravines.

It is apparent from the foregoing, that a variety of areas have previously been considered in the context of a regional park. The need to develop one or more of these sites has been recognized in past planning studies.

On March 20th, 1972, Mayor Sykes of the City of Calgary in a letter to the Premier of the Province of Alberta, advocated the expenditure of some

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Provincial Park money to provide large open space areas within easy access of the populations of the major urban centres in Alberta. This statement was made following an initiative taken by M.L.A. Roy Farran with respect to Provincial Parks for cities such as Calgary and Edmonton.

Alderman McLean moved in the City of Edmonton Council meeting of July 17, 1972 "That we request the Provincial Government to provide a major regional or provincial park in or in close proximity to the City".

This motion led to the establishment of a study group consisting of members of the Edmonton Regional Planning Commission, the City Planning Department, the Department of Lands and Forests Parks Branch, the Edmonton Parks and Recreation Advisory Board, and Edmonton Parks and Recreation. This report has been prepared through the joint efforts of this study group.

The Calgary Regional Planning Commission made a motion at its meeting of October 3, 1972, that a recommendation be forwarded to the Province requesting that the necessary steps be taken to acquire and develop regional parks to serve the population of Calgary and region.

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II DEFINITION OF REGIONAL PARK

A park system designed to meet the wide range of recreation needs within Canada consists of park facilities at all levels from neighbourhood parks to Canada's National Parks. Regional parks fit within such a heirarchy at a point between City parks and Provincial facilities. City level parks generally do not have adequate acreage to provide large natural areas, nature facilities, boating, camping, and other special functions. Provincial parks, which may be able to provide these facilities, are often not readily accessible to the large population concentrations. They are designed and located more for the weekend or holiday traveller and therefore, do not adequately meet the needs of the average day use urban visitor. Regional Parks would fill this gap, and reduce the pressures placed on the City level and Provincial parks.

A regional park should therefore, conform to a number of the following points:

1. Protect or conserve large natural feature areas.

2. Provide controlled public access to such areas.

3. Be readily accessible to the large population concentrations by car, public transit, bicycle and possibly pedestriall trails. A location within 30 minutes to 1 hour driving time has been suggested previously. However, this report feels a much closer location would provide for more economical public transit, greater potential for bicycle and pedestrian access and reduced transportation requirements.

4. It should have potential for some of the following recreation pursuits: - picnicing - camping - swimming

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- boating - active games - nature walks or hiking - cross country ski trails or snow shoe trails - skiing - passive enjoyment of a natural setting - golf - snowmobiling - rifle or archery range - etc.

5. Provide lands upon which the above forms of recreation may be pursued, without conflict with adjacent land uses.

6. Be designed and located primarily for day use activities with secondary emphasis on overnight facilities.

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III INVENTORY OF PARKS AND RECREATION AREAS IN THE EDMONTON REGION

In accordance with the Edmonton Parks and Recreation Master Plan, requirements for regional parks should be established independently of national and provincial parks in the region. National and provincial parks are established in accordance with independent standards to serve the population of the nation and of the province. Regional parks would be established to serve the needs of the people in the region.

TABLE I INVENTORY OF PARKS AND RECREATION AREAS IN THE EDMONTON REGION (50+ mile radius)

Level

No. of Parks

National Provincial Municipal Commercial Golf Courses

1 6 10 5* 12+

Area 75 3,286 1,112 2,170 1,386

sq. miles acres acres acres acres

* includes ski hills + includes private clubs

Presently there are no major publicly owned recreation areas within fifteen miles from Edmonton. Big Island, which is leased by the City from the Province, is not developed. Alberta Provincial Parks are located at Miquelon, Wabamun, Thunder Lake, Hasse Lake, Pigeon Lake and the Pembina River. These parks contain facilities such as campgrounds and beaches, but are not primarily natural areas.

Some of the wilderness areas in Elk

Island National Park are not open to the public; however recreational facilities

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have been provided near Astotin Lake. There are several golf courses, ski hills, provincial campsites and municipal parks throughout the region.

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- 10 IV JUSTIFICATION OF NEED

The 1971 census figures indicated an Edmonton population of 450,641 persons. The Edmonton Parks and Recreation Master Plan 1970-1980, analyzed the needs of City's population for neighbourhood, district and city level parkland to be 14.75 acres per 1,000 population. The City is fortunate in having approximately 14.80 acres per 1,000 population to serve its needs.

Of the 6653.71 acres of parkland in the City, 4855.25 acres is city level parkland located within the river valley and ravine system. By the turn of the century, the projected population of Edmonton will be around the million mark (General Plan, City of Edmonton). As this growth occurs it is apparent that the City will become increasingly hard pressed to maintain the present parkland to population ratio.

Much of the new population will be occupying land in the Mill Woods, Castle Downs, and Kaskitayo development areas which are far removed from the major park facilities in the river valley. These areas have ready access to the Sturgeon River Valley in the north and the Whitemud and Blackmud Ravines in the south. Also this movement of the city boundary to the north and south does not allow the acquisition of much more additional city level parkland in the river valley. The availability of such river valley land has been the major reason for the City maintaining an adequate level of parkland in the past.

In addition to the 14.75 acres per 1,000 population, the Edmonton Parks and Recreation Master Plan recommends that regional parks should be established. No specified ratio has been recommended by the City for the establishment of regional parks. However, the National Recreation and Park Association recommends a standard of 15 acres per 1,000 population for "extra urban open space" lying within an hours travel of metropolitan areas.

At present there are no publicly owned and developed recreation areas within 15 miles of the City of Edmonton which serve this function. There are 6 Provincial Parks located within 30 to 60 miles of the City, and one National Park approximately 25 miles from Edmonton. However, these cannot meet the regional recreation needs of the population. They are primarily designed to meet the requirements of the weekend and holiday traveller. The lack of regional day use facilities in close proximity to Edmonton forces large numbers of people to seek this type of recreation in the Provincial and National Parks, placing undue pressures on these facilities.

The economics of providing roadways to meet the travel needs of large numbers of people to more distant parks could be greatly improved by providing parks much closer to the source of the users.

While no user data is available for the local Provincial Parks, it is the opinion of the Provincial Parks Branch that they are primarily serving people with an income of $8,000 or more and who have access to automobile transportation. In 1970 more than 67% of Edmonton wage earners were receiving less than $8,000 per year. (Department of National Revenue, Taxation Division) From these statistics it is apparent that a large proportion of Edmontonians do not have the funds required to make regular use of the Provincial and National Park sites near Edmonton. One could also expect that much of the population does not have ready access of automobile transportation. This would include a large number of young people, old people, and persons without the necessary funds to purchase and drive an automobile. In order to meet the needs of the urban population regional parks should be located in close proximity to the City and adequate access provided by public transit, bicycle trails and pedestrian trails, as well as automobile.

A park user survey conducted in the Summer of 1971, by Edmonton Parks

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and Recreation has revealed that approximately 15% of park users in the city level parks were not residents of the City. This indicates the City's river valley parks are being used by much of the surrounding population who do not have regional facilities to meet their needs. The reverse situation also exists whereby a large portion of people using recreation facilities such as golf courses and ski hills in communities surrounding Edmonton are from the City.

There are a large number of sites in the river valleys, ravines, and lake areas surrounding Edmonton which should be preserved for their recreational, scenic, and natural qualities. Regional parks afford the means by which this can be achieved.

In proportion to the growth of municipal costs presently incurred by the City of Edmonton, the level of City revenues could be viewed as declining.

With the limited revenue sources available to the City, this is becoming a source of major concern. Park facilities, being a non-revenue producing amenity resource, will generally receive a low priority in future budget considerations in the City.

Therefore, the provision of regional parks, supported in part by provincial or federal funding, will be essential to meet the growing recreation needs of the City and the remainder of the Metropolitan area.

The necessity for regional parks, as outlined in the foregoing discussion can be summarized as follows:

1. To supplement the facilities available within the Edmonton urban parks system by providing large scale forest and water based recreation areas which cannot be provided in the City.

2. To reduce the pressure on Provincial and National Parks for the provision of day use recreation facilities.

3. To reduce the economic pressures of moving large numbers of people to more distant Provincial or National Parks.

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4. To meet the recreation needs of those segments of the population who for a variety of reasons are not able to use Provincial or National Parks.

5. To reduce the pressures on Edmonton's city level parks from residents of the surrounding region and to reduce the pressures placed on recreation resources in surrounding communities by the residents of Edmonton.

6. To preserve those areas surrounding Edmonton which possess outstanding recreational, scenic and natural qualities.

7. To provide by partial provincial and federal funding, those needed park facilities which the City's tax revenue cannot provide and perhaps should not have to provide.

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V SITE CONSIDERATIONS AND RECOMMENDATIONS

This study does not attempt to delineate or recommend specific sites for acquisition. Prior to doing so it is necessary to conduct detailed analysis of many factors such as soil conditions, vegetative cover, water characteristics, access routes, land ownership, etc. Preliminary research has indicated a number of areas where sites might be considered. This chapter discusses these in general terms and makes recommendations regarding the best course of action.

The Edmonton region is fortunate in being endowed with natural scenic landscapes which provide an ideal setting for a wide variety of recreation interests. The North Saskatchewan River which was foLmed in post glacial times, has eroded a deep valley and created terraces, meanders, mud flats and oxbow Lakes. The river valley provides a lineal natural feature extending through the region which possesses high potential for development within a regional parks system. North of the City, the Big Lake - Sturgeon River watershed affords unique potential for park development in close proximity to the City. From the south the Whitemud and Blackmud Ravines create a further lineal parkland corridor adjoining the City which remains in a relatively natural condition. Approximately 25 miles southeast of the City, the Cooking Lake - Hastings Lake area provides a variety of lakes, swamps, woodlands, etc., which are ideal for natural preserve and park development.

1. THE NORTH SASKATCHEWAN RIVER VALLEY The section of the North Saskatchewan River Valley between the •townsites of Devon and Fort Saskatchewan affords great potential for meeting the recreation needs of the regional population. It is not likely that this full length of the river valley could be acquired for park development. Therefore, three types of action are required

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to adequately preserve this land for recreation now and in the future.

First, full title should be obtained to those sections such as the Big Island area and the Oxbow Lake area which present outstanding park potential.

Second, easements should be purchased throughout this stretch of the river. Access easements will allow pedestrian movement in the form of a hiking trail to connect the various park sites.

Scenic easements will protect the natural condition of the river valley in any area where the possibility of non-compatible usage exists. The cost of such easements will be much less than the cost of acquiring the land in fee simple. By obtaining a certain level of control through the use of easements at this time, the process of obtaining complete title to those lands which are required at some future date will be much simplified.

Finally, stringent land use controls should be established and maintained throughout the North Saskatchewan River Valley to remove all threats to its recreation potential. This would mean the extension by the Edmonton Regional Planning Commission, of the Metropolitan Recreation zoning to apply to all river valley and ravine lands between Devon and Fort Saskatchewan. The application of Recreational zoning would tend to limit pressure for other more intensive uses.

It would perhaps also stabilize prices over a period of time which would make public acquisition of large tracts financially possible.

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2. BIG LAKE - STURGEON RIVER VALLEY The Sturgeon River, while not on as large a scale as the North Saskatchewan, provides a lineal corridor in relatively natural condition.

It has a high potential for hiking trails and other nature oriented recreation. The Waskahegan Hiking Trail follows the Sturgeon River from Big Lake to the point where it meets the North Saskatchewan.

This report recommends that the Metropolitan Recreation zoning be extended to include the Sturgeon River Valley from Big Lake to the North Saskatchewan. If necessary, easements should be obtained to ensure pedestrian movement through this stretch of the river valley.

Potential park sites along the Sturgeon River Valley such as the proposed university site should be analyzed to determine the possibilities for park development.

The Big Lake area has been the subject of a number of previous studies. The Edmonton Regional Planning Commission in its preliminary report to the Parks and Recreation Committee in April 1965, outlined a number of diversified interests which must be taken into account and reconciled, before formulating a policy on Big Lake. (See Appendix B) Then, in 1971, the Edmonton Regional Planning Commission and its member municipalities agreed to adopt development policies in the Big Lake area in order to protect its potential for recreational and outdoor educational uses. (See Appendix C) This report recognizes Big Lake's potential as a natural preserve area with limited passive recreation development. Further action should be considered to make this potential a reality.

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3. WHITEMUD - BLACKMUD RAVINES The extensions of the Whitemud and Blackmud Ravines south of the City limits possess outstanding scenic qualities which makes them an important consideration for a regional parks system. Within the City limits it is planned to retain these ravines as natural preserve with only minimal development at certain points. The extension of this natural preserve south of the City is seen as the most desirable step. This should be done by maintaining the existing Metropolitan Recreational zoning. Greater control either by easement or purchase should be obtained where site development or trail access is desirable.

The Waskahegan Hiking Trail presently follows the Blackmud Ravine.

4. COOKING - HASTINGS LAKE AREA The Cooking - Hastings Lake watershed has been the subject of recent public hearings concerning proposed manipulations of the water levels within the watershed. Considerable interest was expressed at that time concerning the compatibility of any proposed alteration with the recreational potential of the Lakes. The Cooking - Hastings Lake area provides an excellent resource for forest and water based recreation development and natural preserve areas. Further analysis should be conducted to assess its possibilities for regional parks development. In addition, where necessary,easements should be obtained to maintain pedestrian access along the route of the Waskahegan Trail.

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5. THE RING ROAD The proposed ring road development around the City of Edmonton may offer the potential for a number of park sites. Such sites would most likely focus on water or outstanding natural features.

A feasibility study of potential regional park sites as part of a greenbelt along the ring road should be conducted.

6. LONG RANGE CONSIDERATIONS This report has outlined a number of areas where it is felt the requirements of regional park development could be met. Initial considerations and detailed planning should revolve around these and other sites in close proximity to or within the City boundaries.

However, if city projections are correct and the population reaches more than 1,000,000 by the year 2,000 pressures shall exist for additional park sites. As part of a long range plan, this report feels that additional sites should be explored and steps taken to protect them for future park development.

The following is a summary of action which should be taken with regard to regional park sites. a) Detailed analysis leading to park site acquisition in the immediate future should be conducted throughout the Edmonton region. b) The use of scenic and access easements to protect sensitive areas and provide pedestrian movement in the form of hiking trails should be explored for the North Saskatchewan River Valley, the Sturgeon River Valley, Whitemud and Blackmud Ravines and the Cooking Hastings Lake area. c) The extension of Metropolitan Recreational zoning to include the

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North Saskatchewan River Valley between Devon and Fort Saskatchewan. the Big Lake-Sturgeon River Valley to its juncture with the North Saskatchewan, the Whitemud and Blackmud Ravines south of the City, certain portions of the Cooking Lake - Hastings Lake area and those sites designated for long range inclusion in a regional parks system. d) Feasibility studies should be conducted to deteLmine the potential of the proposed university site on the Sturgeon River and the lands adjacent to the ring road route for regional parks development.

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VI ADMINISTRATIVE AND FINANCIAL RESPONSIBILITIES

REGOMMENDATION.1 At this time, the approach which is likely to produce the earliest positive results, is to pursue the development of regional parks on the basis of the existing legislation.

The Municipal Government Act, Section 118 and 119 states: 118. "(1) Subject to the other provisions of this Act, a council may pass a by-law authorizing the making of an agreement with the council of any other municipality, the board of trustees of a school district or division or the Minister on behalf of any improvement district or special area (a)for the joint construction, ownership, maintenance, operation or use of a public work or building, or (b)for the performance of any other matter or thing considered by all the councils or boards, or the Minister concerned to be a benefit to their respective municipalities, school districts, school divisions, improvement districts or special areas, and may enter into an agreement as to the joint control and management of anything that concerns their respective municipalities, school districts, school divisions, Improvement districts or special areas.

(2) Where an agreement is entered into pursuant to subsection (1) the council may in the by-law (a)appoint one or more of its members to be members of a joint committee with members appointed by the board of trustees of a school district or school division or by the councils of other municipalities or the appointee of the Minister on behalf of any improvement district or special area, and (b)delegate to such joint committee power to construct, maintain, control and manage such undertaking, including the power to disburse the proceeds of debentures or other funds used for the purpose of such undertaking.

(3) A committee established pursuant to subsection (2) may in each year requisition the council of each municipality, the board of trustees of a school district or school division or the Minister for the proportionate share of the cost of operating the undertaking and expend any sums so requisitioned for the control, management, upkeep and operational expenses of the undertaking.

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(4) A committee established pursuant to subsection (2) shall in each year furnish the council of each municipality, board of trustees of a school district or school division concerned or the Minister with an audited statement of its receipts and payments for the preceding year and shall also supply each council, board of trustees of a school district or school division or the Minister with such information regarding its management and operation as is considered necessary.

119. Subject to this Act, a making of an agreement operation and use of a the performance of any and the Province to be

council may pass a by-law authorizing the with the Province for the maintenance, public work, building or campsite or for matter or thing considered by the council a benefit to both parties."

These two sections of the Municipal Government Act provide the basis for the creation of an authority, representatives of which could be chosen from the regional municipalities involved and the Province. The authority's function would be to acquire, develop, operate and maintain lands for regional parks.

Subsection (3) of Section 118 of the Act establishes the potential for a fund sharing arrangement between the member municipalities and the Province for control, management, upkeep and operational expenses of such parks. An amendment to the Act could also include the provision of funds for the acquisition of land for regional parks.

The Recreation Development Act, Section 8 (1) provides municipalities with the authority to enter into agreements with other municipalities to provide for shared recreation services. Section 8 (1) of this Act states.

8. (1) The council of a municiaplity may, by by-law, (a)provide a recreation service in such manner and on such conditions as it considers advisable, (b)expend such sums as may be required to provide for the recreation services, (c)establish recreation areas in municipalities, (d)authorize agreements with other municipalities or school authorities, or both, to provide for shared recreation services, (e)appropriate moneys for shared recreation services, and,

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(f) expend moneys for capital works related to a recreation service within the municipality or to recreation services shared with one or more municipalities or school authorities.

It appears that this legislation provides the necessary basis for the creation of a regional authority to acquire, develop, and maintain regional parks. The inclusion of Provincial assistance within any agreement established under this Act should be explored.

The power to acquire land for parks purposes is available to the Province through the Provincial Parks Act. Section 8 of this Act states that:

"The Lieutenant Governor in Council may (a) by regulation (i)designate land that is owned by or leased to the Crown as a park, historical site, natural area or wilderness area and declare the name by which it is to be known, and (ii)increase or decrease the area of land designated as a park, historical site, natural area or wilderness area, and, (b) by order authorize the purchase, expropriation or other acquisition of land by the Minister for the purposes of this Act."

The Municipal Government Act provides municipalities with the power to acquire land as outlined in Section 127 of the Act.

"(1) A council may acquire lands or any interest therin either within or without the municipality for any purpose authorized by the Act. (2) The acquisition may be made by purchase, lease or licence, or by expropriation and acquisition may by the terms thereof be permanent, temporary or conditional, either within or without the municipality."

This review of the present legilsation indicates that the authority exists for both the creation of a regional parks agreement amongst the munici-

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palities concerned and/or the Province and the acquisition of land for such purposes.

Certain weaknesses are apparent in this legislation. Regional parks are not specifically spelled out in the legislation; however, they can be assumed to be one of the purposes for which the Municipal Government Act or the Recreation Development Act authorize municipalities to make agreements.

There is also no clear definition of the administrative and financial responsibilities of the parties involved in such an agreement. It is inevitable that the major point of contention in the creation and operation of regional parks will be the question of funding. Therefore, it is felt that some definite guidelines will be required to outline the administrative and financial commitments of both the province and the municipalities involved in a regional parks agreement.

RECOMMENDATION 2

The scope of the present legislation does not provide a sound basis for the creation of regional parks. Therefore, it is recommended that by means of amended or new legislation, guidelines for the creation of regional parks authorities and the acquisition and administration of regional parks should be established.

A lead might be taken from the Provinces of Ontario and Saskatchewan.

Ontario In the Province of Ontario the Conservation Authorities are established and administered as autonomous corporate organizations under the Conservation.

Authorities Act (R.S.O. 1960, Chapter 62 amended). The Authorities are made up by representatives of those municipalities whose jurisdiction lies in whole or in

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part within the watershed or watersheds which define the boundaries of the Conservation Authority. They have the power under this provincial legislation to develop programs dealing with water, land, forestry, fish and wild life, recreation, education and publicity. The financing of the Conservation Authorities can be broken down into 1) Administration costs 2) Capital Costs 3) Maintenance costs Both administration and capital costs are paid jointly by the Authority and the Province of Ontario, with the Province providing a 50% grant for both these costs. Except for large reforestation schemes which may be funded by the Province, the Authority pays all maintenance costs. The Government of Canada may participate in the financing of large flood control projects. Such schemes would be in the order of $1,000,000 or more.

The development of major regional park facilities has become one of the most important functions of the Conservation Authorities in Ontario. The provincial parks were not adequately providing for the day use recreation needs of the large population concentrations. The regional parks established by the Conservation Authorities have filled this gap.

Saskatchewan In 1957 and 1958, Mr. Bill Baker, a consultant, was employed to do a survey of recreational lands and the type of recreation facilities wanted to augment the provincial parks program. The result of his survey was the recommendation of a regional parks program with the role of the provincial parks being designated as parks to protect unique physical features, whereas the role

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of regional parks was on the lesser scale mainly to be recreational in nature.

This report was tabled in 1959 and passed by the legislature in 1960 and was placed under the Conservation Branch. The regional parks program was established under its own act and the concept was that recreational facilities would be developed on the basis of the province working in conjunction with the municipalities and not with service clubs, etc.

The objective of the regional parks program was basically as a means of providing financial assistance; the contributions being 40% from the municipalities or regional authority and 60% from the province for capital developments, but not for maintenance. The province supplies planning and administrative assistance on such matters as budgets, costs on a five year agreement. The work undertaken must be completed by the regional authority before provincial funds are expended. Municipalities on the strength of the five year agreement are in a position where they can borrow funds as required from banks, etc., or raise money by tax levy or from general budgets.

Day to day maintenance and operation expenses are not sharable by the province, however, items classified as capital maintenance may qualify for sharing.

Revenues derived from entrance charges, concession rentals, etc., are applicable by the park authority against operation costs.

This report recognizes the contribution that regional parks have made to the park systems of Saskatchewan and Ontario. It is recommended that similar legislation be established in Alberta to accommodate the need for regional parks.

Under the Provincial Planning Act, regional planning commissions have been established. The commission is made up of member municipalities and funded jointly by these municipalities and the provincial government. At present the

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commission is responsible to undertake planning studies and advise member municipalities on planning matters. This study group feels that by consideration of an amendment to the Planning Act the scope of the regional planning commission might be expanded to include the powers to plan, acquire, develop, and maintain regional parks. By expanding the responsibility of the regional planning commission, it would be possible to take advantage of an already existing authority. A new body would not be created to add to the other authorities dealing with such matters as agriculture, industrial development, etc., all of which are now co-ordinated through the Edmonton Regional Planning Commission.

This report has not explored the federal legislation or programmes which may have some bearing on the establishment of regional parks. A recent announcement from the Prime Minister's office regarding a local "highways and biways" programme and the increased emphasis on recreation and conservation from various federal departments (i.e. Department of State for Urban Affairs and the Department of Indian Affairs and Northern Development) provide encouragement that the Federal Government is interested and should be considered in the development of a regional parks system.

In summary this chapter recommends that: 1. The creation of regional parks should be initiated on the basis of existing legislation.

2. New or amended legislation should be established to provide a sound base for the creation and operation of a regional parks authority.

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VII SUMMARY AND CONCLUSIONS

A review of the history of regional parks discussions indicates that considerable concern has existed in the past. Parks which can fill the gap between urban facilities and Provincial Parks have a recognized place in a complete parks hierarchy. They can reduce pressures on other facilities, meet recreation needs of groups not presently served, and conserve natural areas. A large number of feasible sites show a high potential for regional parks development in the Edmonton area. Either by means of existing legislation or through new legislation, these sites can become a reality in the parks system serving the Edmonton region.

In conclusion, it is evident from this study that the development of regional parks for the Edmonton region is feasible. The concept of regional parks is justifiable both in economic and social terms. It has been supported by the public and City Council as a major objective in the Edmonton Parks and Recreation Master Plan. A consensus of opinion by those authorities involved in the preparation of this study is that efforts should now be directed towards the realization of this goal.

APPENDIX A

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CHAPTER 7

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REGIONAL PARKS

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Regional Parks serve three purposes: to preserve portions of the natural landscape, to supplement recreation facilities in urban areas and to serve as green belts separating cities in large highly developed regions. The National Recreation and Parks Association recommends a standard of 15 acres per 1,000 population for "extra urban open space" lying within an hour's travel of metropolitan areas. The Edmonton General Plan states: "Regional parks are required to provide the metropolitan population with a wide variety of facilities in a setting not available within developed urban areas". If the city continues to grow in accordance with the forecast of the Hanson Report (Hanson, 1968) it will have by 1981 a population of 650.000 people in a.292 square mile area. The service area of the Edmonton Regional Planning Commission, approximately 5,150 square miles. will contain 720,000 people by that time (Fig. 30). A further expansion of the City to include Devon, Fort Saskatchewan and Leduc might be possible by the end of the century.

Recreation needs arc growing at an increasing rate and if Edmonton expands as predicted, potential parkland which is now remote from the City will be required for parks serving local needs. A projected park system to serve regional requirements should include suitable sites located up to 50 miles from Edmonton. Land in the vicinity of Edmonton should be purchased immediately and designated for this purpose: for example, the North Saskatchewan and Sturgeon River Valleys, the south portions of the Whitemud-131ackmud Ravine 'system and the margins of Big Lake. (Recommendation #47.)

Requirements for regional parks should be established independently of

national and provincial parks in the region. More provincial parks may well be

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established during the next few years to preserve relatively large areas of ecological and scenic value. Despite this development, regional parks are essential.

A complete regional system would be comprised of National. Provincial and regional parks.

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TABLE 10 INVENTORY OF PARKS AND RECREATION

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AREAS IN THE EDMONTON REGION (50 mile radius)

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Level

No. of Parks

Area

National Provincial Municipal Commercial Golf Courses

1 4 10 5.

12t

75 sq. miles 2,499 acres 1.112 acres 2,170 acres 1,386 acres

• Includes ski hills.

0-

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NOTE: Complete inventory of regional parks is included in Appendix VI.

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INVENTORY OF EXISTING FACILITIES There are at present no major publicly owned recreation areas within from Edmonton. Big Island, which is leased by the City from the

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Province, is not developed. Alberta Provincial Parks are located at Miquelon, Wabamun, and Thunder Lake and the Pembina River. These parks contain facilities such as campgrounds and beaches, but are not primarily wilderness areas. Some of the wilderness areas in Elk Island National Park are not open to the public; recreational facilities have been provided near Astotin Lake. There arc several golf courses, ski hills, provincial campsites and Municipal parks throughout the region. The parks and recreation areas in the Edmonton Region arc summarized in Table 10 and Appendix VI.

Recreation Areas Class I (intensive use)

Ski hills

Picnic areas Golf courses

Class II (specialized use)

There are many scenic areas within the Edmonton Region that are suitable for recreational development, but they are constantly threatened and frequently lost to other purposes; for example, subdivision of lake margins and gravel operations in the river valleys. Edmonton Parks and Recreation is concerned that waterfront areas which should be in the public domain are rapidly being pre-empted for private development. Thc Department strongly recommends greater control of recreational resources in the region, and encourages additional protective legislation. (Recommendation #48.)

Regional park plans must he developed and coordinated with other projects. The Prairie Rivers Improvement, Management and Evaluation scheme (PRIME) would have important implications for recreational development in the Sturgeon River Valley. The Edmonton Regional Planning Commission. which has powers to control general development, is conducting detailed studies of water resources, agricultural land use, forest cover, animal populations, mineral rekources and highways, in preparation for the Recreation Section of

the Regional Plan.

A REGIONAL PARK PLAN Extensions to metropolitan recreational zoning are proposed in the Edmonton Regional Planning 'Commission's revisions to the Preliminary Regional Plan, Metropolitan part. A regional parks system should include the following components:

I. Extension of metropolitan recreational zoning in the North Saskatchewan River Valley to Devon and Fort Saskatchewan.

2. Selected sites in the North Saskatchewan River Valley west of Devon and cast of Fort Saskatchewan.

3. Extension of metropolitan recreational zoning to include Big Lake and the Sturgeon River Valley.

4. Selected sites near Cooking and I Listings Lakes, Lac I.a Nonne, Lostpoint Lake, the Glory Hills, and the south margins of Ileaverhill Lake.

(Recommendation #49.)

A network of hiking trails should be established which will link the major recreational facilities in the system. Portions of the Waskallegan Hiking Trail have already been designated.

Regional parks and facilities should he classified and zoned in accord-

ance with intensity of use:

Accommodation areas Boating and swimming facilities

Rifle ranges Archery ranges Motorized toboggan areas Motorcycle courses and go-kart tracks Hobby parks

(Recommendation #50.)

The extent to which a public agency should become involved with these kinds of development will be determined by detailed investigation of recreational interests in the region. Ski hills and golf courses can be comthercially profitable, and private clubs have already developed similar facilities.

The development of a regional parks system will require considerable further study. A detailed plan embodying the components indicated on Fig. 30 urgently needs to be prepared. In order to accomplish this objective an intergovernmental agency should he established.

A REGIONAL PARKS AUTHORITY The development and administration of Regional Parks involves all levels of government. The Regional Planning Commission in its brief to the Parks and Recreation Advisory Board recommended the establishment of a -Regional Parks Authority which can function in co-operation with other presently' established parks authorities". Co-operative planning and development is essential when population distribution, growth and movement, and the location of suitable land cuts across political boundaries. There is a need for legislation which would enable municipalities and Provincial government agencies to coordinate mutual land acquisition and development programs. Active encouragement by representatives of the City of Edmonton on the Regional Planning Commission would enhance the possibility of a Regional Parks Authority being formed. (Recommendation #51.)

RECOMMENDATION #47 That selected sites outside the existing city limits and within metropolitan recreational zoning in the North Saskatchewan and Sturgeon River Valleys, the south portions of the Whitemud-131ackmud ravine system and the margins of Big Lake, be purchased immediately and designated for future regional park development.

RECOMMENDATION #48 That the City of Edmonton actively encourage control of recreational resources in the Edmonton Region, and to this end encourage additional protective

RECOMMENDATION' #49 That the components of a regional park system listed in this chapter be adopted as the basis for the preparation of a regional park plan.

Wilderness Areas Class I (restricted use)

Bird sanctuaries Fishing reserves Hunting reserves

Class II (limited use)

Nature study areas Nature trails Outdoor education centres Campgrounds

RECOMMENDATION #50 That the classification of regional parks and facilities listed in this chapter be adopted as the basis for recreational zoning under a regional parks system.

RECOMMENDATION #51 That a regional parks authority be established to include representatives of all levels of government; and that the City actively encourage the formation of such an authority.

91

LEGEND [EIS,150 RECK.OPE FACILITIES FE,STMG AND PROPOSED SECTIEOPOLITAN RECREATIONAL ZONING NOONOART - EDMONTON REGIONAL PLANNING COMMISSION POTENTIAL REGIONAL PARS SITES

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CHAPTER 7

PROJECTED REGIONAL PARK SYSTEM

APPENDIX B

BIG

LAKE

STUDY

A Preliminary Report to the Parks & Recreation Committee

Edmonton Regional Planning Commission April 1965

BIG LAKE STUDY - Preliminary Report GENERAL INTRODUCTION: A number of recent developments have indicated that it is necessary for the Commission and the municipalities adjoining Big Lake to establish some clear policies for the Lake. These proposed developments have included such matters as - subdivisions for semi-rural uses along the south shore, possible marl excavation in and beyond the Lake and a possible Metropolitan park development.

A recent A.R.D.A, study to consider overall drainage is in its early stages and Big Lake is an important factor in the Sturgeon River drainage system.

The Metropolitan iiiver Valleys Study (1963) dealt generally with the various elements along the Sturgeon sliver and indicated the need for a much more detailed study of Big Lake.

As a first step in this detailed study, the Commission has requested and received reports from agencies who have specialized knowledge of the Big Lake area. These include the Fish & Wildlife Division of the Department of Lands & Forests, Earth Sciences Branch of the Research Council of .dberta, Biological Departments of the University of Alberta, 'ater Resources Branch of the Department of Agriculture, Parks & aecreation Department of the City of Edmonton (which included a tree cover inventory and evaluation), Ducks Unlimited, etc. Also, information has been received on the potential areas for marl excavation determined from test drillings by Imperial Cement.

In addition, the staff have prepared base maps indicating physical features, present land use and ownerships.

- 2 In formulating a policy for this area, it is apparent that a number of diverse interests must be taken into account and reconciled. These would include: .

1.

The drainage problems of the Sturgeon Aiver.

2.

The Industrial potential of the marl deposit.

3.

The wildlife habitat provided by the Lake.

4.

The importance of the Lake as a field study area for the university, for a wide range of the natural sciences.

5.

The potential of the Lake for Pietropolitan recreation.

6.

The attraction of the area for semi-rural subdivision.

7.

The uses of the Lake for such activities as hunting, bird watching, etc.

8.

The presence of a substantial underground acquifer.

. 1.

DRAINAGE The Sturgeon is subject to very low flows in the latter summer months. This affects its potential use by present summer camp and commercial beach uses.

The proposed Provincial Park and other downstream uses would also benefit by evening out the flow, or higher flows in the summer months. The higher flows would also help to diqiinish water pollution possibilities whether from urban or industrial or other uses.

One method of improving the situation, is to build up substantial retention areas (either a few large ones or many small ones). It is possible that the best areas for doing this are west of Big Lake and this mnv he enrsiderPd in thp ..R n

- 3 Considering Big Lake in this context, its storage could be increased by darning or by dredging or by a combination of the two. Due to the levels of the north bank, any raising of the levels of even a few feet would result in substantial flooding of adjoining lands unless accompanied by dikes built along the north shorc.

The costs would appear to be such that more than the municipal levels of government would have to participate in such an undertaking. There is legislation under which this might possibly be done, and such organizations as Ducks Unlimited might also be interested.

2.

THE INDUSTRIAL POTENTIAL OF THE MARL DEPOSITS Underlying the Lake and in areas to the west, are marl deposits. Until quite recently the commercial feasibility of using these had not been established. Imperial Cement has now virtually completed a test drilling program and have forwarded an application and proposals for development to the Commission. The marl would be sold to the cement companies in the area - it is not intended to build another plant. Some information on the type of leases they hold on areas of proposed workings is available.

This would affect mainly the western portion of Big Lake. The dredging and excavation could be of substantial assistance in increasing the storage capacity of the Lake - increasing some of the depths from 5 feet to 20 feet.

- 4 It would have to be considered, however, in relation to: 1) its affects on the Sturgeon downstream, due to increased mud and silt suspended in the water 2) to its affects on retaining the area as a natural habitat for wildlife. It may well be that with a number of required conditions, it is compatible with these other uses 3.

THE WILDLIFE HiABITAT PROVIDED BY THE LAKE Although Big Lake may appear superficially to be a marginal lake of no very great value to the area, its marginal nature makes it extremely valuable as a natural area and wildlife habitat. The reports of both Fish and Wildlife and the University, emphasize this point. If its character is greatly altered by various developments, its function cannot easily be replaced by other bodies of water in the region.

The present evidence would indicate that this function should be given a very high priority. The measures necessary to ensure its use for this purpose, have in some provinces, been achieved through 4,..R.D.A. programs, This possibility should be fully explored.

4.

IMPORTANCE AS A FIELD STUDY AREA - for University and Schools. Due to several unique characteristics this Lake would appear to have very great value for this function. The University report elaborates on this. Its value for the public and separate school science courses may be considerable.

5.

THE POTENTIAL OF THE LAKE FO,. OETROFOLITAN RECREATION The location of the Lake in very cloSe proximity both to St. Albert and the City, presents the

- 5

-

possibilities of its use for recreation. Such uses as camping, picnicking and perhaps boating exist if they 'are carried out in a manner which is compatible with its use as an area to be kept largely in its natural state. This may well be a question of what areas of the Lake this should be confined to. There may also be a potential for limited tourist trailer camps.

6.

THE POSSIBILITIES FOR SEMI-RURAL SUBDIVISION Due to its proximity to Edmonton and St. Albert, any large concentration of small parcel subdivision which in time would evolve into villages or towns, would present administrative and financial problems and would certainly preclude retaining the area in a semi-natural state. The possibilities of larger parcels located in relation to the ravines and wooded areas should be considered further.

7.

THE USE OF THE LAKE

FOR SUCH OTHER ACTIVITIES as

hunting and bird watching have as yet not been fully explored although some reports from interested organizations are contained in the Appendix.

8.

THE UNDERGROUND ACQUIFER, mentioned by the Research Council and considered by them of major importance, may not be of direct affect to the Lake area, although possibilities of pollution should be examined. It is, however, a matter in which Towns such as St. Albert, and various industries may be greatly interested.

This is a preliminary report prepared to assist the Parks and Recreation Committee in its initial discussions on Big L,ke. The reports received are contained in the attached Appendix.

APPENDIX C

BIG LAKE RECREATION AREA

The Commission and its member municipalities have agreed to adopt development policies in the Big Lake area in order to protect its potential for recreational and outdoor educational uses.

Development Policies The nature of subdivision and land use policies within the study area is determined by the desire to maintain its potential for recreational and outdoor educational uses. The following policy guidelines are those adopted: 1.

There should be no further subdivision of land below the 2150'

contour. This is essential if the recreational potential of the area is to be maintained. Furthermore, it will be necessary to control development on existing parcels below the 2150' contour. New structures that are accessory to existing buildings may have to be approved.

However, no new development should be permitted unless it will complement the overall objective for the area - namely that it be a minimum use natural area. Additional clearing of private land below the 2150' contour should be discouraged as much as possible.

2.

Land between the 2150' contour and the south boundary of the study

area should be subject to the following controls: (a) Land within approximately half a mile of the 2150' contour shall not be subdivided into parcels any smaller than 20 acres in size. The general objective of this recommendation is to retain the land that immediately abuts the Lake in as undisturbed a condition as is feasible. For this reason, applications for country residence development within this half mile zone shall not be approved.

- 2 Agricultural uses such as grain crops and pasture lands shall be maintained wherever possible. The maintenance of bush on private land shall be encouraged in this zone wherever possible. b) Land between the half mile limit and the south boundary of the study area shall also be subject to this 20 acre Minimum parcel size. Consideration may be given to applications for country residence development in this zone providing that the site complies with established Commission policy for country residence location. There shall be a maximum density of 15 parcels per quarter section regardless whether the application is for Country Residence A or B development.

3. A 20 acre minimum parcel size shall apply to all subdivision applications for land above the 2150' contour along the north shore of the Lake. Most of this area is prime agricultural land and should remain in agricultural use in accordance with Commission policy. Land in this zone adjacent to the Sturgeon River valley may be considered for country residence development providing the site complies with established Commission policy for Country Residence A development.

The maximum density shall be 15 parcels per quarter section.