Edmonton (Alta.) - 1979 - Edmonton general plan_issue papers (1979-02) by Edmonton Tower Resource Centre Online Library

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Edmonton General Plan -POPULATION AND HOUSING 1TRENDS AND FORECASTS

EDMONTON SUB-REGION YEAR

EDMONTON SUB-REGION, AND CITY 1951 - 2001

1951 1956 1961 1966 1971 1976 1981 1986 1991 1996 2001

YEAR 1951 1956 1961 1966 1971 1976 1981 1986 1991 1996 2001

• n/a Not Available • Projection without annexation implies that the City's boundaries will be frozen in their current position throughout the forecast period. • Projection with annexation assumes that the City will be permitted to annex enough land to permit the City to continue to take its natural share of dwelling increases (i.e., Annexation will proceed ahead of or in step with the expansion of the contiguous urban area). However, this scenario does not include population increases which may occur due to annexation of already developed lands. E.g., if the City were to annex Sherwood Park, that population would have to be added to the values shown in this table. • In order to make trend data from different sources comparable, some of the figures have been adjusted.

Prepared by: City of Edmonton Planning Department. 1979

( FACT SHEET )

POPULATION 218,898 304,041 391,618 454,012 520,800 596,500 692,200 781,100 868,500 954,600 1,041,000

HOUSING STOCK n/a n/a n/a n/a 151,000 199,400 248,100 293,300 334,400 372,800 408,700

CITY OF EDMONTON POPULATION HOUSING STOCK Without With Without With Annexation Annexation Annexation Annexation n/a n/a 166,625 43,000 n/a n/a 234,652 56,000 n/a n/a 292,472 76,269 n/a n/a 384,313 102,267 n/a n/a 437,581 131,130 n/a n/a 461,600 159,600 497,600 196,100 497,600 196,100 542,700 542,700 230,600 230,600 565,800 598,000 252,000 261,500 584,300 654,600 269,600 290,600 711,600 607,000 286,500 317,900

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POPULATION AND HOUSING GROWTH RATES EDMONTON SUB-REGION, AND CITY 1951 - 2001

EDMONTON SUB-REGION Increase Average Increase Average In Annual In Annual Population Increase Housing Increase

Period 1951-56 1956-61 1961-66 1966-71 1971-76 1976-81 1981-86 1986-91 1991-96 1996-2001

•

Total City population increase between 1961 and 1966 is 91,841 due to the annexation of Beverly (December 1961; population 9,041) and Jasper Place (August 1964; population 37,883). Population increase excluding annexation is 44,917 for an average, annual population increase of 2.85%.

** Total City housing stock increase between 1961 and 1966 is 25,998 due to the annexation of Beverly (December 1961; 2,100 occupied dwelling units) and Jasper Place (August 1964; 7,072 occupied dwelling units). Housing stock increase excluding annexation is 16,826 for an average annual housing stock increase of 3.97%. Prepared by: City of Edmonton Planning Department, 1979

1951-56 1956-61 1961- 66 1966-71 1971-76 1976-81 1981-86 1986-91 1991-96 1996-2001

Period

6.79% 5.19% 3.00% 2.78% 2.75% 3.02% 2.45% 2.14% 1.91% 1.75%

n/a n/a n/a n/a 48,400 48,700 45,200 41,100 38,400 35,900

n/a n/a n/a n/a 5.72% 4.47% 3.40% 2.66% 2.20% 1.86%

CITY OF EDMONTON Increase In Population Average Annual Increase Without With Without With Annexation Annexation Annexation Annexation

Period

85,143 87,577 62,394 66,788 75,700 95,700 88,900 87,400 86,100 86,400

n/a n/a n/a n/a n/a 36,000 45,100 23,100 18,500 22,700

68,027 57,820 91,841* 53,268 24,019 36,000 45,100 55,300 56,600 57,000

n/a n/a n/a n/a n/a 1.51% 1.75% 0.84% 0.65% 0.77%

7.09% 4.50%

5.61% 2.63% 1.07% 1.51% 1.75% 1.96% 1.83% 1.68%

CITY OF EDMONTON Increase In Housing Average Annual Stock Increase Without With Without With Annexation Annexation Annexation Annexation

1951-56 1956-61 1961-66 1966-71 1971-76 1976-81 1981-86 1986-91 1991-96 1996-2001

n/a n/a n/a n/a n/a 36,500 34,500 21,400 17,600 16,900

13,000 20,269 25,998** 28,863 28,470 36,500 34,500 30,900 29,100 27,300

n/a n/a n/a n/a n/a 4.21% 3.29% 1.79% 1.36% 1.22%

5.43% 6.37% 6.04%

5.10% 4.01% 4.21% 3.29% 2.55% 2.13% 1.81%

Edi lonton General Flan LAND DEMAND TRENDS AND FORECASTS EDMONTON SUB-REGION AND CITY

COMMERCIAL LAND

RESIDENTIAL LAND — SUPPLY City of Edmonton - Suburbs (Acres) 16,150 gross (without annexation) 1977

- RETAIL FLOOR SPACE DEMAND City of Edmonton

26,400 gross (with annexation to R.D.A.) — DEMAND 1971-2001 23,000 to 27,000 gross Demand averaged 850 gross per annum from 1973 to 1978. A range of 700 to 900 gross per annum is expected from 1978 to 1986, declining gradually thereafter.

Million net sq. ft.

1971

10.48

1976

12.22

1981

15.11

1986

18.18

Sub-region Beyond City (Acres) 9,700 net (12,900 gross).

1991

20.23

n/a 350 net (Est.) (467 gross, Est.) Demand averaged 256 net (341 gross) per annum from 1973 to 1978.

1971

8.45

1976

10.91

1981

16.28

1986

20.15

1991

22.87

Average Annual Growth

3.12% 4.34% 3.77% 2.16%

INDUSTRIAL LAND — SUPPLY City of Edmonton (Acres) 1978

5,400 net (7,100 gross)

— DEMAND 118 net (157 gross) 1971 218 net (291 gross) 1976 Demand averaged 186 net (248 gross) per annum from 1973 to 1978.

— OFFICE FLOOR SPACE DEMAND Million net sq. ft.

Average Annual Growth

5.24% 8.33% 4.36% 2.56%

1978-1991

3,100 net (4,100 gross) Average annual demand of 240 net (320 gross).

4,600 net (6,200 gross) Average annual demand of 360 net (470 gross).

Prepared by: City of Edmonton Planning Department, 1979

Edmonton General EMPLOYMENT AND TRANSPORTATION TRENDS AND FORECASTS

ACT ,,HEET

EMPLOYMENT — EMPLOYED LABOUR FORCE

City of Edmonton

CENSUS METROPOLITAN AREA AND CITY

Edmonton Census Metropolitan Area

Average Annual Growth 1951

66,144

1961

109,082

1971

171,200

1981

234,800

1991

322,700

2001

444,100

Average Annual Growth 65,371

5.13% 4.61% 3.21% 3.23% 3.24%

127,285 185,500 253,900 348,300 478,900

TRAVEL DEMAND

— A.M. PEAK HOUR AUTO DRIVER TRIPS City of Edmonton Number of Trips

Total Average Distance Distance/ (Miles) Trip (Miles)

68,000

292,400

4.3

80,433 1981 100,327 1991 125,041 2001 1975-2001 Average annual 2.2% increase

410,208 561,831 675,221

5.1 5.6 5.4

1975

3.0%

— TRANSIT RIDES

City of Edmonton Number of Trips 1971

39,910,000

1976

56,477,000

1981

66,000,000

Average Annual Growth

6.7% Prepared by: City of Edmonton Planning Department, 1979

3.3%

6.89% 3.84% 3.19% 3.21% 3.24%

Edmonton General Plan Deponme.

LIBRARY The City of Edmonton

A CITIZEN' S GUIDE ISSUE PAPER

@lilt/M.0n PLANNING JANUARY, 1979

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;INDUSTRIAL AND TRANSPORTATION RESIDENTIAL COMMERCIAL

PARKS AND OPEN SPA( INSTITUTIONAL

LAND USE, EDMONTON 1979

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A CITIZEN'S GUIDE TO THE EDMONTON GENERAL PLAN WHAT IS THE EDMONTON GENERAL PLAN? During the past several years Edmonton has experienced continuing growth as a result of Alberta's booming oil industry and the economic opportunities accompanying it. While Edmonton is a beautiful, dynamic City, it is faced with a number of issues caused by rapid urban growth — issues related to housing, transportation, commercial development, industrial development, parks, recreation and community and social services. Our guide for managing Edmonton's growth is the Edmonton General Plan. This Plan is the land use policy plan which

comprises the City's official statement of policy regarding the future character and quality of development in Edmonton. As such, it provides a set of land use guidelines required to help achieve the social, economic and environmental goals of the City. In effect, the Plan provides a framework to allow City Council to deal with many of the complex planning

issues which result from rapid City growth. The Edmonton General Plan is a long range plan which will provide for orderly City growth to the year 2001. During this period, however, new trends will emerge, new councils will be elected, and citizens' values and priorities will change. Therefore, it is intended that the Plan, once adopted, be monitored annually and kept up-to-date. In addition to an annual review, a more in-depth review may be necessary every five years.

As a comprehensive guide to Edmonton's growth, the Edmonton General Plan will: 1.

define an overall urban growth strategy and outline: • proposed land uses for the City; • staging of future development in the City; and • financing of future development in the City.

make specific policy recommendations regarding the future development of land for residential, commercial, industrial, transportation and recreation purposes. In this way the General Plan will provide a framework for the policies contained in a number of planning reports, including: • Edmonton's Land Use Bylaw; • Edmonton's Transportation Plan; • Edmonton's Downtown Plan • Edmonton's Parks and Recreation Master Plan; and • Community Plans, District Plans, and Special Area Plans.

establish ways and means to improve citizen participation in the planning process. In essence, the General Plan will deal with issues which affect what development will take place in Edmonton, where it will go, and when it will go there. In doing this, the Plan will touch upon the very basic issues of where we work, where we live, and how we move about the City.

THE PARTICIPANTS The present Edmonton General Plan was adopted in 1971 and is now undergoing a major review by the Planning Department. While City Council will make the final decision in approving the new General Plan, there will be several opportunities for individuals, special interest groups, and community organizations to participate in the plan preparation process. The following participants will be involved in this process of preparing the Plan:

1. City Council • will make the final policy decisions and approve the Plan.

2. Planning Department • will undertake technical studies. • will involve government agencies and the public in the plan preparation process. • will prepare the final General Plan for approval by City Council.

3. Mayor's Advisory Committee • will advise the Mayor on the concerns of a variety of special interest groups in the community. The eleven members of the Committee were appointed by the Mayor in June, 1978, on the basis of their interest in community planning, to provide ongoing input to the General Plan from the citizens' point of view.

4. Provincial, Federal and Civic Government Departments • will review the General Plan during the Plan preparation stage and comment on the Plan recommendations as they affect their specific area of concern.

5. The Public • will present their views and make suggestions on the future growth of the City. Individual citizens and special interest groups such as business organizations, neighbourhood associations and the Edmonton Federation of Community Leagues will be asked to become involved in the General Plan Review. The accompanying illustration shows how the participants will take part in the Plan preparation process.

City Council Planning Department

Mayor's Advisory Committee

Civic, Provincial and Federal Government Departments

The Public 2

HOW YOU MAY PARTICIPATE

Over the next several months a citizen participation program will be carried out involving citizens in the preparation of the Edmonton General Plan. The public will have the opportunity to become involved in discussions on the General Plan and will be kept informed of the progress on the Plan throughout this

ongoing participation program. Some of the components of this program will be: • citizens' workshops; • open houses; • newspaper articles; • displays; • information centres and • the publication of progress reports.

The following flow chart describes the Plan preparation process for the General Plan and focuses on those events which have involved, and will involve, citizen input.

PUBLIC PARTICIPATION PROCESS EDMONTON GENERAL PLAN

NEIGHBOURHOOD PLANNING CONFERENCE (MID -JUNE 1978)

LIBRARY The City of Edmonton

PUBLIC PARTICIPATION PAPERS

PUBLIC PARTICIPATION ACTIVITIES

PHASES

Planni. g Dcpat trnent

NEIGHBOURHOOD PLANNING CONFERENCE FINDINGS REVIEWED

NOV '78

INDENTIFICATION OF ISSUES

PHASE I

DEC I

EVALUATION OF ALTERNATIVES

PHASE II

RECOMMENDATIONS —FINAL PLAN

PHASE III

I I

ISSUE PAPERS (FIRST SERIES) MADE PUBLIC

379

"CITIZENS' PREVIEW" MADE PUBLIC

NM m I= = = Mil I= IIII = NM

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ISSUE PAPERS (SECOND SERIES) MADE PUBLIC Or'

INITIAL OPEN HOUSE

SUBMISSION OF BRIEFS AT CITIZENS' WORKSHOPS

CITIZENS' WORKSHOPS

I "REPORT BACK" PUBLIC PARTICIPATION PAPER MADE PUBLIC

FEB MAR APR

FIRST DRAFT OF GENERAL PLAN MADE PUBLIC

CITY COUNCIL (FIRST READING)

MAY

PUBLIC INFORMATION PROCESS SUBMISSION OF BRIEFS AT PUBLIC HEARING

PUBLIC HEARING =I Im MI MI • M

JUNE JULY 3

1. Phase One — Identification of Issues The first phase of the planning process was actually initiated in September, 1977 when the Planning Department formed a Project Team to review the existing General Plan. During this phase, the Team's efforts were directed towards the preparation of population, land use and economic growth projections. The Team reviewed the existing General Plan policy statements and examined the current policies of various federal, provincial and municipal departments as they relate to land use in the City. Finally, current and future planning issues were identified through: • an analysis of growth projections; • planning activities in the older neighbourhoods and suburbs; and • the "Mayor's Neighbourhood Planning Conferences" (June, 1978).

2. Phase Two — Evaluation of Alternatives The major thrust of the citizen participation program will begin during the second phase of the General Plan preparation process with the release, in January 1979, of the Citizens' Guide to the Edmonton General Plan and a series of Issue

"a preliminary review of the issues facing Edmontonians today"

Papers on such topics as Parks and Recreation, the Downtown, the Suburbs, the Inner City neighbourhoods, Transportation, Economic Development, Housing Costs, Citizen Participation, The Land Use Bylaw, Urban Design, and Energy Conservation. As an introduction to the citizen participation process, the Issue Papers present a preliminary review of the planning issues facing

kSTWOOD COMMUNITY LEAGUE

CITIZEN PARTICIPATION AND THE PLANNINO PROCES

Edmontonians today. Later in January, a "Citizens' Preview" to the General Plan will be made available to the public. Where the Issue Papers stress issues and problems, the Citizens' Preview will focus on alternate growth strategies in an effort to identify a preferred overall growth strategy for the City. Following the release of the Citizens' Preview, a series of Citizens' Workshops will be held in February and March to permit everyone interested to discuss the alternative courses of action as presented in the Preview. Throughout this three month period the public will be kept informed through the media as to the progress on the General Plan and how they may participate. Open Houses and General Plan displays will be held at various locations around the City during this phase to allow citizens to learn about the General Plan review process and to provide suggestions in an informal setting. During Phase 2, the Planning Department will encourage individuals and interest groups to present briefs on the General Plan issues and opportunities so that the Planning Department will have

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additional information from which to prepare the final draft. 3. Phase Three — Review of Final Recommendations The citizens' input from Phases 1 and 2 will be summarized in a "Report Back" Citizen Participation paper during the early part of Phase 4

3. This document will analyze all of the citizens' concerns and priorities and will provide important background material for the final General Plan recommendations. It is anticipated that the General Plan will be submitted to City Council in May, 1979. Following Council's first reading, a six week public information process will be held to allow individual citizens and interested groups to prepare briefs which document their concerns and priorities, as they relate to the final General Plan recommendations. As the final stage in the General Plan citizen participation program, formal public hearings will be held by City Council to enable citizens to make their official presentations.

"Workshops will be held to permit everyone interested to discuss the alternative courses of action."

"GROWTH" â&#x20AC;&#x201D; THE MAJOR ISSUE The growth rate, as reflected through housing starts and household formation, is the highest it has ever been in Edmonton, and this high growth rate is expected to continue for.some time into the future. It is estimated that by 2001, the population in the Edmonton Region will have doubled. Such a growth rate reflects the fact that Alberta is projected to grow at approximately 2.8 times the rate projected for Canada as a whole over this time period. To illustrate the effects which this population and household growth has had on land use planning in Edmonton, it is perhaps sufficient to note that the value of building permits per capita in Edmonton in 1976 was one and a half times higher than the National average. Since Alberta has the fastest growing economy in Canada, it will mean that Edmonton must plan ahead for

steady, high rates of residential, commercial and industrial growth. Growth has both advantages and disadvantages. A growing economy means greater employment Opportunities and rising incomes. A growing economy supports the provision of a wide range of physical and social services and cultural activities. Growth offers the opportunity to create a dynamic city. At the same time growth can adversely influence our quality of life. Traffic congestion and noise inevitably increase with increasing City size. Many people live great distances from the core of the City and are unable to have convenient access to the range of services offered by the Downtown. Growth also creates pressures to redevelop some areas of the City. Historic buildings may be demolished and neighbourhoods threatened. Growth may also contribute to an 5

400

300

200

100

1951 1956 1961 1966 1971 1976 1981 1986 1991 1996 2001 YEARS

GROWTH IN CITY SIZE EDMONTON 19 51-2001

800 000 700 000

POPULATION

600 000 500 000 400 000 300 000 200 000 100 000

1111 11111111P 11111111111111111111 od 11111111111111M20111 11111111111111111E21111111111 111111111111111111111111111111 111M1111111111111111111111111 1111111111111111111111111111111

increase in housing costs by pushing demand beyond supply. The expansion of the suburbs to meet housing demands may, in turn, result in the loss of high quality agricultural land. Finally, growth can require a greater consumption of energy: for the journey-to-work, to pump water and sewage, and to distribute the wide range of urban services. In addition to these physical effects of the City's growth there are social effects. For example, some areas of the City are too densely populated for the number and type of social and leisure services provided, while other areas are of too low a population density to warrant these services. In both cases, an inadequate level of services may result in a variety of social problems. Given the inevitability of growth in the City of Edmonton, the real question to be answered is the quality of this growth. Growth in the City will occur largely because of the available economic opportunities.

1111111111111111111111111111.

1951 1956 1961 1966 1971 1976 1981 1986 1991 1996 2001 YEARS

POPULATION GROWTH EDMONTON 1951-2001

800 000 700 000 (j) 600 000 500 000 C.7 (7) 400 000 0 300 000 200 000 100 000

1111111111111111111111111111 1111111111111111111111111111 111111111111111111111111 111111111111111111111111111 1111111111111111EFEMII 11111111111111E21111E111 1951 1956 1961 1966 1971 1976 1981 1986 1991 1996 2001 YEARS

GROWTH IN HOUSING STOCK, EDMONTON 1951-2001

This growth cannot be halted in spite of the Provincial Government's desire to decentralize growth to the smaller urban centres in Alberta. Edmonton's economic dominance of the Region will continue and it will be accompanied by a rise in population. The primary question which the Edmonton General Plan will deal with is how to manage growth to preserve and enhance our quality of life. All of the other issues which will be addressed revolve around this central question.

ISSUES RESULTING FROM GROWTH As Edmontonians, we must identify those social, economic and environmental factors which reduce our satisfaction with living in Edmonton. Only then can we work towards finding the solutions for these problems. What kinds of problems are facing Edmonton both now and in the future? Listed below are the most significant issues which have been identified so far through the General Plan review process: 1. Costly Facilities and Services. environmental consequences of Future projections indicate that many of the solutions. The challenge there will continue to be increases in is to create the most economical, the per capita operating and capital balanced transportation system cost of providing facilities and possible, with the right mix of services such as roads, public transit, improved roadways and public municipal utilities, recreational transit. In doing so we must explore the possibility of redirecting travel facilities, schools, libraries, "We must identify those factors that recreational programs, and social demand through such policies as the reduce our satisfaCtion with living in services. If costs are to be held down, encouragement of transit usage and Edmonton." the decentralization of offices into we may have to look at ways of reducing the standards for some of subcenters in the outlying areas. these facilities and services. In addition, through land use planning, we will have to consider ways to PER CAPITA DEBT combine facilities so that they may be provided at less cost to the taxpayer. EDMONTON 1972-1977 2. Uncertainty About the Future of $2,000 Older Communities. Redevelopment in the Inner City is often seen as an alternative to increasing densities in the Suburbs. However, if the older, $1,500 Inner City neighbourhoods are to remain viable, any redevelopment which occurs in the Inner City must be carefully planned. We must develop planning policies and $1,000 strategies to ensure that the residents feel confident about the future stability of their neighbourhood and SELF-LIQUIDATING DEBT have the feeling that they have some $500 control. To this end, redevelopment must be directed and controlled so that certain areas do not receive too much redevelopment, and so that TAX SUPPORTED DEBT redevelopment is compatible with existing neighbourhoods. 72

Traffic Congestion. It is projected that with the continuing concentration of jobs in the Downtown area and the expansion of residential growth in the outlying areas, there will be significant increases in traffic congestion over the long term. Constraints to implementing the various solutions include the lack of enough funds to complete the job, and the social and

YEARS

The Growing Suburbs. Despite the fact that a mix of densities in the suburbs is needed to provide a range of alternate housing styles and price levels, many people feel that the densities are too high. Concerns about housing costs, traffic congestion and the provision of park space and community facilities are

important issues which must be considered through the General Plan review process. 5. Need for More Residential Land. While Edmonton's overall population is increasing by 2% per year, housing demand is increasing at an even faster rate, due in part to the large numbers of "baby boom" 7

children entering the housing market for the first time. This trend is reflected in a high rate of expansion in the suburban areas, and forecasts are that the City will be running out of land by the mid 1980's. Given this outward expansion, the City is undertaking an "annexation study" to determine how much additional land, beyond Edmonton's present boundaries, would be required for future city growth.

Need for More Industrial Land. Forecasts suggest that over the long term, if present trends continue, it is unlikely that the City will be able to accommodate more than 40% of the new industrial development (in terms of industrial acreage) coming into the Edmonton Region. In order to counteract the movement of new industry beyond the City boundaries, the City will require more land for industrial development. Only then will the City be able to ensure sufficient growth in Edmonton's industrial tax base.

TOWARDS RESOLVING THE ISSUES While many of the City's "planning" issues are not solely land use issues, some may be resolved at least partially through land use planning to accommodate people, housing and jobs within the City. For example, through the General Plan it is possible to create policies which may relate to the development of subcenters, the extension of Light

" . . . the City will be running out of land by the mid 1980's."

Rail Transit and the provision of land for future residential and industrial development. As previously stated, the General Plan is the City's basic land use planning document. It sets out a long range plan to allocate the future growth of population and employment in such a way as to preserve our quality of life and minimize the adverse effects of growth. The land use plan reflects a desire to accommodate and control growth in Edmonton, given the likely growth of the City up to the end of this Century. Over this period the Plan will be reviewed annually to keep it up-to-date, and a more in-depth review may be necessary every 5 years. The need to review and amend the Plan will arise from several sources, including: â&#x20AC;˘ the identification of significant changes in market trends; â&#x20AC;˘ the approval of major development proposals; and â&#x20AC;˘ the identification of a need for change in policy by City Council, by citizen groups, or by special interest groups, due to changes in values or priorities.

KEEP IN TOUCH ilr---c

1 1

The above issues and solutions are just a few that have been identified by the General Plan Review Team as areas for major study. Are there other issues which you consider important which should be addressed here? If so, the General Plan Review Team wants to know about them. In an effort to alert the people of Edmonton to planning issues, the General Plan Review Team has prepared a number of papers on issues related to Transportation, the Downtown, the Suburbs, the Inner City, and Parks and Recreation. These Issue Papers are intended primarily for • information, though any comments, criticism or suggestions which may arise are welcomed by the Team.

Copies of the Issue Papers are available at the following locations: • Information Desk, Main, Floor, City Hall; • Maps and Publications Desk, Planning Department, 7th Floor, City Hall; • Government Information Division, 2nd Floor, Centennial Library;

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• All City of Edmonton Branch Libraries; • All City of Edmonton: - Parks and Recreation District Offices; - Neighbourhood Improvement Program (NIP) Field Offices; and - Social Service Centres. For further information about the contents of the Issue Papers or about the citizen participation program for the General Plan Review, please contact: Ken Johnson, or Greg Barker, General Plan Review Team, City of Edmonton Planning Department, 1405 Centennial Building, 10015 - 103 Avenue, Edmonton T5J OH1 Telephone: 428-3536.

GENERAL PLAN ISSUE PAPERS 1., A Citizen's Guide to the Edmonton General Plan 2. The Downtown 3. The Inner City 4. The Suburbs 5. Transportation 6. Economic Development 7. Parks and Recreation 8. Citizen Participation 9. Housing Costs 10. The Land Use Bylaw 11. Urban Design 12. Energy Conservation

@THE CITY OF t

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Edmonton General Plan ?lc:inning Department,

LIBRARY The City of- Edmonton

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NTOWN, EDMONVO

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DOWNTOWN - THE HEART OF THE CITY The downtown is the heart of a city. It is an expression of a city's identity and vitality. We can sense the strength of a city in its business centre; in the offices, banks, hotels and shops. And we can sense the life of its people in its restaurants, art galleries, libraries, nightclubs and theatres. This definition suits Downtown Edmonton. It is strong, healthy and growing. As a commercial and government centre, the Downtown serves and attracts people and enterprises from the entire City and outlying area. Although Edmonton's Downtown covers only one-half of one per cent of the total area of the City, it contains over 75 per cent of Edmonton's office space. Furthermore, about 25 per cent (57,000) of Edmonton's employed labour force works in the Downtown area. In addition to being a strong commercial centre, Downtown Edmonton is a "people place" too, designed for and dependent on social interaction. Developments such as the new Citadel, the Centennial Library and the Art Gallery have injected new life into the Downtown. Recent tree planting efforts and parks construction have made our downtown streets and sidewalks more pleasant. The pedway system and indoor courtyards recently built into shopping complexes and hotels now provide us with shelter from Edmonton's winter weather. Yet, when the weather is nice, we can enjoy it by relaxing in Sir Winston Churchill Square and Beaver Hills House Park. All of these things have contributed to a more enjoyable City.

DOWNTOWN PREDOMINANT LAND USE

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core office/commercial area

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provincial governmen centre

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GROWING PAINS While the rapid pace of development activity over the past few years has resulted in many improvements to the Downtown environment, it has also brought some problems. These problems and those which may develop if current trends continue, have been reviewed in a discussion paper recently prepared by the City Planning Department as the first step in the development of a plan for the Downtown. Downtown Plan Working Papers #2 and #3, entitled, Towards A Downtown Plan, discuss some of the issues and concerns which will be considered in the preparation of the Downtown Plan and the General Plan. These are:

1. Land Use Variety (Office Over-Development) As a government and regional business centre, the City of Edmonton experiences a considerable demand for office space. Downtown land use is increasingly becoming dominated by office activity. This concentration of office blocks has reduced the variety of land uses in the 2

Downtown and has created an area with little activity after normal working hours.

". . commuting times for people in cars and buses will steadily increase. . ."

2. Limited Housing Choice Redevelopment pressures experienced by Inner-City

communities such as Oliver, Garneau and Boyle Street indicate the attractiveness of residential accommodation in or close to the Downtown. Many people who desire to live Downtown cannot, however, find housing which is suitable in terms of type or cost. Land values and a shortage of land in the Downtown tend to discourage residential development.

3. Congestion of the Transportation System Downtown Edmonton is experiencing considerable road congestion. Many of the major . through streets are accommodating maximum traffic flows. Population growth generally, and the continued concentration of employment downtown will increase the traffic problems we are now experiencing during rush hours. Unless there are major improvements to the transportation system, or changes in the City's pattern of growth, commuting times for people in cars and buses going into the Downtown will steadily increase.

Inadequate Parking There is presently a lack of short-term parking facilities in the downtown area. This is largely because many of the existing parking facilities are used by downtown employees for parking all day. A lack of parking spaces combined with high parking rates may encourage more people to support suburban shopping centres, to the detriment of downtown businesses. Difficulties in finding a parking space downtown may also discourage people from going downtown in the evening for entertainment

5. Lack of Parks and Open Space The Downtown is characterized by

". . . the greatest intensity of development and activity in the City."

the greatest intensity of development and activity in the City, yet has proportionately less open space for

recreation than elsewhere in the City. Parks and open space in the Downtown are insufficient and poorly distributed. Acquisition of central City land is expensive and a minimal amount of funding is available. To bridge the gap between current needs and existing economic realities, the recently prepared Parks and Recreation Master Plan for the City of Edmonton has called for increased involvement of the private sector in the development of downtown open space. Local improvement levies have also been proposed as a means of financing the development and maintenance of open space downtown. These, then, are some of the primary concerns about the Downtown which will be addressed

in the review of the General Plan. Other issues for discussion include the provision of adequate social services, future development of the pedway system, the preservation of historic buildings and the improvement of general amenities and design in the City.

PREVENTIVE MEDICINE By planning ahead, we may be able to resolve or at least minimize existing and potential problems. Let's look at some of the actions which the City might take:

1. Extending the Light Rail Transit (LRT) System The Light Rapid Transit (LRT) system promises to be an effective and efficient means of transporting large numbers of people to and from the Downtown every day. The success of the LRT in reducing traffic problems will depend on the development of a City-wide system which would provide an acceptable alternative to the automobile. City Council has already approved the southern extension of the LRT as the next leg to be developed in the 1980's.

The General Plan, in recommending an overall growth pattern for the City, will establish land use policies which complement and support the total public transit system. For 4

example, the General Plan may propose land use policies which create increased residential densities

"One option. . . would discourage all-day parkers."

parking policies which would discourage all-day parkers. This would then encourage people to ride public transit or to form car pools, all of which would help reduce traffic congestion and free parking facilities for shoppers and short-term parkers. The City administration is presently investigating the development of a Municipal Parking Authority to deal with parking problems in the City. biliEU11111111VIIIJI6 Mtge:: +4E10041111111i BILE

around LRT station areas and concentrations of employment in a number of City subcenters on or near the LRT routes.

2. Discouraging All-Day Parking One option presently being explored is the possibility of developing

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3. Encouraging Housing Downtown Building more housing downtown would help to relieve transportation problems because more people would then walk to work. It would also increase the choice of housing for Edmontonians, and provide an expanded market for shops, entertainment and cultural facilities. This would help keep the Downtown "alive" during the evenings. There are several constraints to developing housing in the Downtown core, however. Land costs are very high, and the economic return to the developer is much higher for commercial rather than residential development.

Nonetheless, redevelopment in mixed use buildings containing offices, apartments and shopping

"Building more housing downtown would help relieve transportation problems. ."

existing warehousing sector north of 102 Avenue between 101 and 109 Streets. A downtown housing study, now underway, is examining the feasibility of providing housing in the Downtown. The study is scheduled for completion in February, 1979. The results will be incorporated into the Edmonton General Plan.

may prove economically feasible. One area to consider for redevelopment would be the

4. Developing City Subcenters A possible solution to the traffic problems resulting from the concentration of employment downtown would be to encourage the decentralization of jobs to suburban "activity centres". These centres would consist of offices, shops, apartments, restaurants and other community facilities. They would increase the number and variety of job opportunities in the suburbs and also provide a focus for community activities.

Redirecting some office growth away from the Downtown to subcenters would not only encourage a better distribution of travel flow

". .. we must consider what direction we want our Downtown to take."

Future Light Rail Transit stations could serve as the focal point for small activity centres. Others could be in the new residential areas of Mill Woods(Castledowns and Clareview -where town centres have been planned into the total residential concept.

throughout the transportation system. It would also provide opportunities to introduce housing and a variety of commercial activities downtown. Planning for the future will

undoubtedly require consideration of some or all of these alternatives. Solutions will also have to be found to the other problems of the Downtown such as the provision of parks and open space and appropriate guidelines for urban design and historic preservation. Together, through the General Plan, and the Downtown Plan, we must consider what direction we want our Downtown to take.

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Specific area studies presently being undertaken within the Downtown such as the Convention Centre, the Southeast Civic Centre and the Alberta Government Centre, will affect the future planning of the area and must be coordinated with the overall Downtown Plan. Plans are presently being prepared for the communities adjacent to the Downtownâ&#x20AC;&#x201D; Oliver, Gameau, Strathcona, Boyle Street/McCauley. These areas,

CURRENT PLANNING AFFECTING THE DOWNTOWN The General Plan will outline broad policies for future development in the Downtown and throughout the rest of the City. It will provide direction to a downtown plan which will deal with the central area in more detail. Preparation of the Downtown Plan has just begun and is expected to take about two years to complete. A number of ongoing plans, studies and development projects will also affect the future of the Downtown. Recommendations of the new Parks and Recreation Master Plan will affect the type, quantity

and distribution of open space to be provided in the Downtown. Transit

". . . determining how much and what kind of growth should take place."

plans will become more prominent within the next few years in determining how much and what kind of growth should take place in Downtown Edmonton.

because of their proximity, their land uses and their future potential, will also be considered in the planning of the Downtown. Finally, the number of directly adjacent development projects such as the proposed Chinatown redevelopment project and the recent redevelopment of Capital City Park will influence the future planning of the Downtown.

BOYLE STREET population shift

CN YARDS possible relocation

CHINATOWN redevelopment

DOWNTOWN EDMONTONSPECIAL STUDIES AND OUTSIDE INFLUENCES. 1 CIVIC CENTRE 2 CONVENTION CENTRE 3 PROVINCIAL GOVERNMENT CENTRE

THE DOWNTOWN, THE GENERAL PLAN AND YOU Downtown Edmonton is healthy and growing. It is, however, experiencing growing pains. The City is investigating the problems and possible solutions through a number of studies and plans. The General Plan may be the most important of these documents. It will provide a broad policy framework to deal with specific problem areas. What problems do you see with existing or future development downtown? What solutions do you suggest? The General Plan Review Team would like to hear from you. With your help, the General Plan will establish policies that will protect and enhance the vitality and liveability of Downtown Edmonton. This Issue Paper is one of a series of discussion papers which have been prepared on several topics including the Suburbs, the

•ts

Downtown Transportation, the Inner City, and Parks and Recreation. These papers are intended primarily for information, although any comments, criticism or suggestions which may arise from these papers are welcomed by the Team. For complete information about the General Plan Review and how you may participate, please refer to A Citizen's Guide To The Edmonton General Plan—Issue Paper No. 1.

Copies of the Issue Papers are available at the following locations: • Information Desk, Main Floor, City Hall; • Maps and Publications Desk, Planning Department, 7th Floor, City Hall; • Government Information Division, 2nd Floor, Centennial Library; • All City of Edmonton Branch Libraries; • All City of Edmonton: - Parks and Recreation District Offices; - Neighbourhood Improvement Program (NIP) Field Offices; and - Social Service Centres. For further information about the contents of the Issue Papers or about the upcoming citizen participation program for the General Plan Review, please contact: Ken Johnson, or Greg Barker, General Plan Review Team, City of Edmonton Planning Department, 1405 Centennial Building, 10015 - 103 Avenue, Edmonton T5J OH1 Telephone: 428-3536.

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GENERAL PLAN ISSUE PAPERS 1. 2. 3. 4. 5. 6. 7. 8. 9. 10. 11. 12.

A Citizen's Guide to the Edmonton General Plan The Downtown The Inner City The Suburbs Transportation Economic Development Parks and Recreation Citizen Participation Housing Costs The Land Use Bylaw Urban Design Energy Conservation

@I THE CITY OF

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. . . planning for our future

Edmonton General Plan zilanning Departmeie

LIBRARY Thu City of Edmonton

THE INNER CITY ISSUE PAPER NO. 3

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PLANNING JANUARY, 1979

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INTRODUCTION Unlike several other North American cities whose Inner City areas are in a serious state of decay, Edmonton's Inner City is relatively vibrant and healthy. Edmonton's Inner City neighbourhoods are those 62 older neighbourhoods which were built prior to 1950. As illustrated on the map opposite, these neighbourhoods are clustered around the Downtown and the old town centres of Jasper Place, Beverly, Calder and Strathcona. The role that these older residential areas will fulfill in the future is very important in the preparation of a General Plan for Edmonton. What types of policies should we have for these older areas? How can we improve the residential environment? For whom are we improving it? When and where is redevelopment necessary? What form should redevelopment take? These are examples of vital questions requiring leadership and direction from the General Plan if we are to meet the aspirations of the residents of the Inner City communities. This pamphlet summarizes the issues which are basic to the future of these Inner City neighbourhoods, and looks at ways in which these issues can be addressed in the General Plan.

THE INNER CITYA VITAL RESOURCE "a vital historical resource that adds diversity and interest. . . "

The Inner City neighbourhoods are the product of decades of public and private investment in community building. Many of these neighbourhoods date back to the late 1890's and the early 1900's when Edmonton was still a small town of

less than 1,000 people. At the time of their origin, some of these communities were either outlying suburbs or small villages lying outside Edmonton's boundaries. Today, the Inner City neighbourhoods are the home of nearly one-half of Edmonton's population. These older neighbourhoods represent a vital historical resource that adds diversity and interest to the City. These areas have an underlying beauty and strength of character which comes only with maturity. In the Inner City we find Edmonton's first buildings, a wide variety of housing styles and attractive tree-lined streets. These older neighbourhoods provide us with examples of what our new neighbourhoods might be like and, at the same time, they provide us with a reference point to reflect on our City's growth and progress. It is in the Inner City where the cultures of early western settlers who have lived in Edmonton since the early 1900's blend with those of recent immigrants. Today these Inner City communities are populated by elderly citizens, University students, new Canadian immigrants, newly-marrieds and many single working people, both young and old, all pursuing their varied life styles.

THE KEY ISSUES The importance of the history of these neighbourhoods cannot be stressed enough when we consider the future plans for the Inner City, because many of the problems of today are rooted in the City's historical past. These neighbourhoods have gradually accumulated a number of "aging" problems such as: • roads which were never designed to handle today's traffic volumes; • community facilities which have deteriorated with age; • a lack of park space • deteriorating or over-loaded water and sewer systems; and • housing which, in many cases, requires rehabilitation. While some neighbourhoods may be suffering from a variety of "aging" problems, the most serious problems facing these communities today are those caused by outside pressure for change or redevelopment. Caught in the middle-ground between the Downtown and the Suburbs, some of the more central neighbourhoods such as Oliver, Gameau, Groat Estate and

Riverdale are feeling the effects of City-wide pressures for redevelopment in the City's inner core. It is necessary to consider both the neighbourhood and City-wide perspectives in assessing the issues of the Inner City, since the General Plan must be concerned with balancing the goals of Inner City residents and the goals of overall growth of the City. By clarifying the issues, we can see where conflicts might develop and begin to explore trade-offs and opportunities in the Inner City neighbourhoods.

Some of these issues and potential solutions are discussed below:

Redevelopment Versus Rehabilitation In several Inner City neighbourhoods there is increasing pressure for redevelopment to high density residential or commercial uses. While more dwelling units may be provided through redevelopment, there is concern that much of the City's more affordable housing stock may be lost and certain Inner City neighbourhoods will lose their character and function. Residents fear that increased densities and physical change in the Inner City neighbourhoods cause a number of interrelated social problems and lead to a greater threat to personal safety.

"The neighbourhoods have gradually accumulated aging problems . . . "

The question of Inner City redevelopment and/or rehabilitation is raised in front of residents and elected officials almost on a daily basis. A major responsibility of the General Plan will be to establish the land use policy guidelines which will form the basis for neighbourhood rehabilitation and redevelopment plans in the Inner City. It is most likely that the General Plan will be stressing a "mix" of redevelopment and rehabilitation measures for most Inner City neighbourhoods. General Plan policies will encourage redevelopment projects which are compatible with existing neighbourhoods in terms of building height, design and the provision of units suitable for families. The Plan will examine the question of preservation of old buildings as well as innovation in the design of new buildings and open spaces.

-There is currently a net decline of population in The Inner City"

Traffic/Transportation The Inner City is in a direct path between the suburbs and the downtown. As the number of suburb-to-downtown trips through Inner City neighbourhoods is increasing, problems of noise, pollution and danger to the pedestrian become more serious. The General Plan will consider the possibility of increasing the emphasis and opportunities for public transit. In addition, the question of employment decentralization to City sub-centres will be examined as a means of moderating the City's central area focus.

Parks and Recreation

Population Growth/Decline

Inner City neighbourhoods face a lack of open space since they were developed before the Provincial Government instituted strict standards for open space requirements. The high cost of Inner City land means that considerable capital must be used to acquire even a small park. Since the lack of vacant land in the Inner City means existing buildings must be torn down, there is also conflict between the need for housing and the need for parks. Policies relating to the provision of park space and recreational facilities will be presented in the General Plan.

There is currently a net decline of population in the Inner City. Some factors which have contributed to this loss of population are: • declining family size; • movement of families to the Suburbs; • decreasing amounts of suitable, affordable family housing; and • the stage of the life-cycle of Inner City residents (young singles or elderly).

DECLINE OF INNER CITY POPULATION

+ 20,000 +10,000

1.21% AVERAGE .67 0% ANNUAL INCREASE AVERAGE ANNUAL INCREASE 1971-77

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1966-71

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The loss of population in Inner City areas has raised the possibility that some schools and community facilities might be shut down because they are under-used. The additional loss of these community facilities would detract from the quality of Inner City neighbourhoods, possibly resulting in a further loss of families. Maintaining a sufficiently high population base is very important to the future well-being of Inner City neighbourhoods. The General Plan will examine policies relating to the rehabilitation and preservation of neighbourhoods to improve their attractiveness for families.

"a sufficiently high population base is important to future well-being. . ."

TOWARDS A RESOLUTION OF ISSUES The General Plan is the City's long range growth plan. The purpose of this Plan is to guide the future growth and development of the City as a whole. It will include policy statements regarding the location of residential and industrial land, the transportation network, the direction of urban expansion, and the methods by which the Plan will be implemented. The overall growth strategy that will be adopted through the General Plan will deal with three main "growth" concerns: â&#x20AC;˘ the location of employment and distribution of employment density; â&#x20AC;˘ the location of residential areas and the distribution of residential densities; and â&#x20AC;˘ the location and form of the transportation system. To be workable, the General Plan must be concerned with "balancing" the needs and aspirations of people in all areas of the City. Towards this end, the Plan will identify the opportunities and trade-offs to be made in dealing with specific issues such as those outlined above. Several types of policies are being considered to maintain what is valuable in the Inner City while accommodating the changes 4

necessary for the overall well-being of the City. For example, encouraging the distribution of slightly higher residential densities along public transportation corridors and in proximity to employment centres, is being considered as a means of conserving the' amount of land for new suburban development and decreasing travel times between the home and work. However, this new development must be integrated into existing neighbourhoods very carefully in order to minimize the impacts of such redevelopment. The continued expansion of the public transportation system, including Light Rail Transit, is also being considered as a means of reducing the negative effects of automobile traffic in the Inner City.

The General Plan will also be establishing policies for more detailed planning in the Inner City areas. The detailed neighbourhood plan is often necessary to adequately deal with the problems associated with growth and redevelopment in the older areas of the City. In addition, the General Plan will be analyzing the feasibility of establishing a system of "district planning" which would provide the link between the neighbourhood planning activities and the General Plan. Since many of the Inner City issues transcend neighbourhood boundaries, consideration will be given to the creation of planning districts made up of several neighbourhoods. The determination of the boundaries of these planning districts

will take into consideration those boundaries which will be used for the delivery of human services such as health care, social services, and bylaw enforcement. It is believed that the creation of planning districts would foster continued citizen involvement in planning and would allow citizens to consider planning issues which affect not only their own neighbourhood, but their district and City.

" . . . during the 1960's citizens began to demand involvement in the shaping of their environment"

RECENT PLANNING ACTIVITIES IN THE INNER CITY Detailed neighbourhood planning in Edmonton, with intensive citizen involvement in the planning process, is a relatively recent phenomenon. This kind of neighbourhood planning actually evolved during the 1960's when citizens began to demand that they be involved in the shaping of their environment. In 1972, a citizens group was organized in the Canora neighbourhood with the purpose of developing a Plan to improve their community. Just as they were beginning to develop their Plan in 1973, the Federal Government announced the Neighbourhood Improvement Program (NIP) â&#x20AC;&#x201D; a neighbourhood planning program aimed at preserving older neighbourhoods through the provision of funds for the improvement of municipal services, roads, parks, neighbourhood facilities,

and the rehabilitation of housing. Canora, in the latter part of 1973, became Edmonton's first Neighbourhood Improvement Program area. Since 1973, the Planning Department has become involved in neighbourhood planning in an increasing number of Inner City neighbourhoods, through its implementation of the NIP program. To date, five Inner City neighbourhoods have benefited from the NIP program, namely: • Canora; • Norwood; • Calder; • Ritchie; and • Alberta Avenue/Eastwood. In addition to the NIP program, which is funded by all three levels of government and administered by the City, another planning program has been developed solely by the City for neighbourhoods which are receiving greater pressures for redevelopment. Neighbourhoods which have been involved in this "Community Planning Program" so far are: • • • •

Riverdale Groat Estate; Oliver; and Garneau.

Also, through its "special area" planning programs, the Planning Department, in recent years has been involved in a number of special planning projects in the Inner City such as: • a Downtown Area Plan; • the River Valley Area Plan; • the Boyle Street/McCauley Area Plan; • the North East Light Rail Transit Corridor Land Use Study; • the C.P. Rail Relocation Study; • the Yellowhead Corridor Land Use Study; • the Stony Plain Commercial Strip Land Use Study; and • the Old Strathcona Area Historical Preservation Study. 6

Overall, it is through these neighbourhood planning activities that residents in the Inner City have become involved in civic affairs and have become more attuned to the planning issues affecting them. Through these various

neighbourhood planning activities, the City in concert with neighbourhood residents has been able to implement physical improvements, implement zoning changes and create policy changes which have helped strengthen Edmonton's Inner City.

NEIGHBOURHOOD IMPROVEMENT COMMUNITY PLANNING AND SPECIAL AREA PROJECTS

7 RITCHIE NIP. PLAN 8 CALDER NIP. PLAN 9 CANORA NIP. PLAN 13 ALBERTA AVENUE/EASTVVOOD NIP. PLAN 14 NORWOOD NIP. PLAN

1 DOWN TOWN 2 BOYLE STREET/MCCAULEY 3 NORTHEAST LR.T. CORRIDOR LAND USE 4 YELLOWHEAD CORRIDOR LAND USE 50W STRATHCONA AREA DEVELOPMENT 6 STONY PLAIN STRIP LAND USE 16 RIVER VALLEY AREA DEVELOPMENT 17 C.P. RAIL RELOCATION STUDY

10 GROAT ESTATE COMMUNITY PLAN 11 OUVER COMMUNITY PLAN 12 GARNEAU COMMUNITY PLAN 15 RIVERDALE COMMUNITY PLAN

KLYI1 iUULH The above issues and possible solutions are just a few that have been identified by the General Plan Review Team as areas for major study. Are there any other issues which you consider important which should be addressed here? If so, the General Plan Review Team wants to know about them. The General Plan Review Team has prepared this discussion paper on the Inner City in an effort to inform the people of Edmonton about Inner City planning issues. This paper is one in a series of Issue Papers which covers several topics including the Downtown, the Suburbs, the Inner City, Transportation, Parks and Recreation, Economic Development,

Housing Costs, Citizen Participation The Land Use Bylaw, Urban Design and Energy Conservation. These papers are intended primarily for information, although any comments, criticisms, or suggestions which may arise from these papers are welcomed by the Team. For complete information about the General Plan Review and how you may participate,

please refer to A Citizen's Guide To The Edmonton General Plan— Issue Paper No. 1. Copies of the Issue Papers are available at the following locations: • Information Desk, Main Floor, City Hall; • Maps and Publications Desk, Planning Department, 7th Floor, City Hall; • Government Information Division, 2nd Floor, Centennial Library; • All City of Edmonton Branch Libraries • All City of Edmonton: - Parks and Recreation District Offices; - Neighbourhood Improvement Program (NIP) Field Offices; and - Social Service Centres. For further information about the contents of the Issue Papers or about the citizen participation program for the General Plan Review, please contact: Ken Johnson, or Greg Barker General Plan Review Team, City of Edmonton Planning Department, 1405 Centennial Building, 10015 - 103 Avenue, Edmonton, T5J OH1 Telephone: 428-3536.

GENERAL PLAN ISSUE PAPERS 1. 2. 3. 4. 5. 6. 7. 8. 9. 10. 11. 12.

@THE CITY OF t

. . . planning for our future

Edmonton General Plan eionning Depotteleilf

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THE SUBURBS

The City of Edmonton

ISSUE PAPER NO.4

THE CITY OF

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PLANNING JANUARY, 1979

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THE SUBURBAN GROWTH STORY In Edmonton, the suburbs are officially known as Outline Plan Areas. The Outline Plan Areas which are developing now are Mill Woods; KasIdtayo; Riverbend-Terwillegar Heights; West Jasper Place; Castle Downs I and II and Northeast Edmonton (Clareview, Hermitage and Casselman-Steele Heights). The expansion of Edmonton's suburbs, like the changing downtown skyline, dramatically reflects the City's growth. The following figures indicate how much Edmonton's suburbs have grown in the last few years: 1. Between 1972 and 1977, the population of the City of Edmonton grew by 30,000 people. The new residential areas, officially known as "Suburban growth, however, Outline Plan Areas, grew by 42,000 brought with it some people during the same period. This means that the suburbs not only problems. . absorbed most of the City's new population, but also attracted population from Edmonton's older residential areas. 2. Between 1972 and 1976, 84% of 3. Between 1972 and 1976, the suburbs grew by over 950 gross acres all housing units, of all types, built per year. The 1971 General Plan for in Edmonton were located in these Edmonton had anticipated that over new suburban areas.

the long term, 550 gross acres of land would be absorbed each year for urban residential uses. The growth of the suburbs has provided many homes for Edmonton's citizens and it has widened the range of residential locations and housing types from which they might choose. Suburban growth has, however, brought with it some problems.

SUBURBAN GROWTH ISSUES CASTLE DOWNS I &II

NORTH EAST EDMONTON

WEST JASPER PLACE

RIVERBEND KASKITAYO

MILLWOODS

Here are some of the problems which could be issues for discussion during the General Plan review of the suburbs and suburban growth:

1. Increased Travel Time The outward growth of the suburbs combined with the concentration of employment in the City's downtown has resulted in more and more people commuting longer distances. The traffic generated by suburban residents travelling to and from work in the downtown area is straining Edmonton's existing street system. Most major roadways and all bridges are jammed to capacity during the rush hours. Consequently, congestion is also increasing the commuting time of suburban residents. All this increased travel, in turn, has resulted in a greater consumption of energy resources. Furthermore, residents of the older neighbourhoods are being forced to live with greater noise, pollution and increased danger associated with heavy commuting traffic.

INCREASED TRAVEL TIME FROM SUBURBS TO DOWNTOWN 1

Resident Dissatisfaction with the Design of Suburban Neighbourhoods

Complaints of residents regarding the design of new suburban neighbourhoods have been on the increase. It seems that the suburbs are perceived as more crowded, less private and less attractive than many of the more established neighbourhoods. Design issues include densities, the location of low income housing and the general monotony of suburban design and architecture. The quality and distribution of park space in the suburbs is also an issue. Many residents feel that rather than large central park areas, there should be smaller parks located throughout the neighbourhood and that these parks should be better equipped.

Delays in Providing Community Services

New residents to the suburbs are frequently disenchanted to learn that the developing areas cannot immediately offer the same level of

services which are available in the more established neighbourhoods. Services such as schools, bus service, playgrounds and libraries are provided on the basis of demand. That is, they are provided only when there are enough people living in the community to support the facilities. How long residents wait for services depends on how quickly people move into these neighbourhoods.

Decreasing Supply of Residential Land

As the major municipality in the Region, it is most important that the City is able to provide a constant supply of land for residential development. Sufficient land must also be available to ensure that growth occurs in an orderly and economic fashion. Planning Department research shows that as of early 1978, there were only about 13,600 gross acres of urban residential land remaining in the whole of the City's Outline Plan Areas. Most of this land will be subdivided by 1983, and all of the land will be provided with basic services by 1984. The supply of developable land within the City's jurisdiction will thus be exhausted by the mid-1980's, though it will be some time before the Outline Plan Areas are fully developed and populated. Uncertainty about the future supply of land for residential development, and the possibility that development in areas adjacent to the City's boundaries will be fragmented and inefficient, may drive up the price of land and housing in the Region.

"developing areas cannot immediately offer the same level of services. . ."

Ensuring A Supply of Land

The City is currently examining a range of boundary and government form options which would increase the supply of residential land and permit more effective long range planning of development around the City's periphery. The results of the City's investigation will form a comprehensive annexation application to be presented to the Local Authorities Board in the Spring of 1979.

TOWARDS RESOLVING THE ISSUES What might be done about the above problems? There are a number of actions which might be taken:

1. Growth for the Inner City Redirecting some of the City's population growth to the Inner City would help solve some of the problems associated with the growth of the suburbs. It would reduce total travel in the City and prolong the City's supply of residential land. Careful planning would be required to ensure that increased population

growth in the Inner City and redevelopment did not undermine the character of older communities, create traffic and parking problems, or overburden services and parks and recreation facilities. Land which is underutilized, such as railway land, the warehouse district in the Downtown area and obsolete industrial areas might be redeveloped to provide housing in the Inner City. The Planning Department is currently investigating the feasibility of building more housing into the downtown area.

"Redirecting some of the population growth to the Inner City would help.. .

2. Decentralizing Employment to City Subcenters Increasing population growth in the Inner City area is one approach to reducing the transportation problems created by suburban growth. Another approach would be to develop policies which support more employment in the suburbs so that people might have the opportunity to work close to where they live. The concentration of

employment in City subcenters would also increase the viability of providing improved transit services in the suburbs. Concentrating employment in these suburban "town centres" might also encourage the development of a wider range of personal and community services in the suburbs. 3

Improving the Design of Suburban Communities.

The way we design our communities can greatly affect our feeling of whether or not our neighbourhoods are crowded. It may be that the increased densities of some of the new suburban neighbourhoods might not be perceived as a problem, if for example, multiple-unit housing were not concentrated in the centre of a neighbourhood or located along the community's major roads, and if more amenities were provided. Considerations such as these have been explored in a recent study by the Land Use Planning Branch of the City Planning Department, entitled "The Design and Distribution of Density in New Neighbourhoods". The study was completed in July, 1978, and is now being used by the City as a basis for reviewing subdivision applications 4

which include multiple housing units. However, design is not the only answer to resident dissatisfaction with densities. The question of what densities are acceptable requires some soul-searching because the densities which we are willing to accept influence the cost of our homes and services. We might not be able to continue to afford the low density housing which is our current standard. Dealing with higher densities is one of the design challnges presented by the new suburban neighbourhoods. There is also the problem of park design in the suburbs. This matter is currently being studied by the City Parks and Recreation Department. Finally, but perhaps most important, is the issue

of the general design and architectural monotony of the suburbs. The General Plan might address this concern with policies that encourage innovation and creativity in suburban design.

4. Improving the Delivery of Services Residents of new areas are often dismayed by the lack of community services such as schools, bus service, libraries and playgrounds available to them when they first move into a suburban neighbourhood.

Unfortunately, residents must wait until their neighbourhoods achieve large enough populations to be able to warrant and support such services. With growth occurring simultaneously in each of

Edmonton's six Outline Plan Areas, the City is not financially capable of supplying community services to each suburban neighbourhood before there is a sufficient supporting population. Several options will be explored by the General Municipal Plan on the matter of improving the delivery of services. For example, new growth may be better staged so that areas more quickly reach the population levels required to support various services. This would lessen the delay in the provision of services to residents, but it would reduce consumer choice with respect to the location of new housing. Another possible way to achieve earlier delivery of services would be to have developers, rather than the City, build the parks and community facilities. This latter course of action has been proposed in the recently prepared Parks and Recreation Master Plan for Edmonton.

WHAT THE GENERAL PLAN AND YOU CAN DO This paper has noted a few of the issues concerning the suburbs and suburban growth. Some actions which might be taken on these issues have also been noted. This brief review illustrates that the problems arising out of the growth of Edmonton's suburbs will require solutions at both the neighbourhood and City-wide levels. That's where the General Plan comes in. As a land use policy document, the General Plan has the power to shape Edmonton's future growth. Its primary function is to analyze and recommend an overall urban growth strategy to accommodate the City's growth over the long term. In addition, it provides a broad policy framework to deal with specific problem areas. It's important that policies within the General Plan reflect our goals for the future of the City at the neighbourhood level and for the City generally. And that is where you come in. What problems do you see with existing or future suburban development? What solutions do you suggest? The General Plan Review Team would like to hear from you. With your assistance, the General Plan will be successful in establishing policies that will help to improve the quality of life in the suburbs and minimize the problems caused by suburban expansion.

FOR FURTHER INFORMATION This Issue Paper is one of a series of discussion papers which have been prepared on several topics including the Suburbs, Transportation, the Downtown, the Inner City, and Parks and Recreation. These papers are intended primarily for information, although any comments, criticism or suggestions which may arise from these papers are welcomed by the Team. For complete information about the General Plan Review and how you may participate, please refer to A Citizen's Guide to the Edmonton General Plan—Issue Paper No. 1

Copies of the Issue Papers are available at the following locations; • Information Desk, Main Floor, City Hall; • Maps and Publications Desk, Planning Department, 7th Floor, City Hall; • Government Information Division, 2nd Floor, Centennial Library; • All City of Edmonton Branch Libraries; • All City of Edmonton: - Parks and Recreation District Offices; - Neighbourhood Improvement Program (NIP) Field Offices; and - Social Service Centres. For further information about the contents of the Issue Papers or about the upcoming citizen participation program for the General Plan Review, please contact: Ken Johnson, or Greg Barker, General Plan Review Team, City of Edmonton Planning Department, 1405 Centennial Building, 10015 - 103 Avenue, Edmonton T5J OH1 Telephone: 428-3536.

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GENERAL PLAN ISSUE PAPERS 1. A Citizen's Guide to the Edmonton General Plan 2. The Downtown 3. The Inner City 4. The Suburbs 5. Transportation 6. Economic Development 7. Parks and Recreation 8, Citizen Participation 9. Housing Costs 10. The Land Use Bylaw 11. Urban Design 12. Energy Conservation

THE CITY OF t

. . . planning for our future

Edmonton General Plan lonlaing Dept:armor

LIBRARY The City of Edmonton

TRANSPORTATION ISSUE PAPER NO.

THE CITY OF

MORT 11 PLANNING JANUARY, 1979

— 30

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INTRODUCTION In the process of preparing the Edmonton General Plan, various major transportation problems have been identified. This Issue Paper will look at what courses of action might be followed to reduce the impact of these problems and will describe those transportation planning projects which are currently being undertaken by the City. Most importantly, however, the Paper will indicate how the new General Plan can contribute to the reduction of Edmonton's existing and future transportation problems through the preparation of a long range land use plan for the City.

THE FUTURE OUTLOOK The City of Edmonton currently is experiencing rapid growth which is expected to continue into the future. As a result, considerable funds will have to be spent on Edmonton's transportation network to keep up with the growing amount of traffic in the City. Through careful planning and citizen involvement we can determine how best to improve the transportation network. Looking into the future we can see a number of trends developing which have to be dealt with through the planning process. These trends include:

1. The cost of the trip to work will increase in terms of dollars, time and energy, as the distance between suburban homes and downtown jobs increases.

4. There will be an increase in the number of cars travelling from surrounding municipalities into the City and primarily, into the Downtown. 5. The expenditure on roadway and transit system improvements is expected to increase from $90,000,000 in 1978 to $132,000,000 by 1981. This represents a cost of $259.00 per person by the year 1981. 6. Transit service will become increasingly expensive in the future because Edmonton will have more people living in the suburbs and bus routes will therefore be longer.

2. The number of people commuting to jobs in the Downtown area by transit and auto will continue to increase, although more people will travel to jobs in the suburbs. 3. There will be a growing number of cars entering the Downtown area each day, even as the number of people using public transit to get to work will increase.

TRANSPORTATION ISSUES While a look at the trends which affect the City's transportation network provides the basis for our long-term planning process, there are a number of major transportation issues which must be dealt with now.

"The cost of a trip to work will increase in dollars, time and energy . . . "

The biggest test for any urban transportation system is how well it can move people to and from work 1

during the morning and evening rush hours. To plan a transportation system which can cope with rush hour traffic flow, we must know where people live and work to analyze trip destinations and trip lengths, and how people travel to and from work (i.e., by bus, car, bicycle, Light Rail Transit, etc.).

VEHICLE TRIPS TO THE CENTRAL AREA

By 1981 in Edmonton, it is estimated that 55,500 people will commute to jobs in the Downtown area in the morning rush hour. It is further estimated that 56% or 31,000 of these trips will be made by private automobiles. Not surprisingly, the concentration of employment opportunities in the Downtown area, the population growth in the suburbs and the resulting traffic patterns have created specific transportation problems:

1. Roadway Congestion Frequent traffic jams and the length of the daily journey to work are annoying to many commuters, affecting both auto drivers and transit riders from all parts of the City. The flow of traffic in the morning and evening rush hours strains the capacity of many roads, especially to and from the Downtown.

Traffic congestion hurts residential communities adjacent to these roadways in terms of noise, vibration, air pollution, and potential dangers to residents. Congestion is particularly annoying to residents of the older Inner City 2

2000 1000 500 Vehicle Trips

Morning Peak-hour Traffic

will 2001

communities where road rights-of-way are too narrow and the grid street pattern allows auto drivers to shortcut through the residential neighbourhoods. Roadway congestion and its associated problems are not easily eliminated, although there are various solutions available. While there is a demand for the construction of new roads or the widening of existing roads, these improvements may disrupt older, Inner City neighbourhoods as a result of the purchase of parkland, the demolition of homes, and the separation of residents from community facilities. Also, improvements to roadways or the construction of new facilities to support a particular land use pattern only attracts more drivers to the roadway. Hence, there is a need to

develop a land use pattern which supports efficient movement patterns and reduces the number of network improvements necessary. In this way, the General Plan may play an important role in reducing the overall cost of providing a total transportation system.

"By 1981, 55,500 people will commute to jobs in the Downtown . . . "

2. Traffic From Outside the City A portion of Edmonton's rush hour roadway congestion problem is

caused by traffic from surrounding municipalities entering the City, especially the Downtown area. While Edmonton must provide roadway facilities for these conunuters who add to the increasing congestion on the City's roadway network, they do not contribute any revenue to help cover the cost of necessary roadway improvements. This problem will persist as long as these commuters need to reach the Downtown area.

Transit Service

Public transit is recognized as an essential service, necessary both to promote efficient commuting and to

"Edmonton Transit. . . faced with increasing deficits as the city grows . . . "

provide mobility to residents who do not have cars. Like the roadway system, the Edmonton Transit System must be capable of transporting high volumes of workers to and from their jobs during the rush hours. Improvements to the quality of transit service have been made to the point where the supply of transit service exceeds the demand, indicating transit usage is lower than it could be. And furthermore, as Edmonton continues to grow outwards, the transit system is required to service even more dispersed areas with increasingly longer bus routes. Because of these factors, Edmonton Transit is continually faced with rising deficits. The problem which the City faces is how to attract more riders while at the same time, minimize increases in fares and operating costs.

Parking Problems

With so many people driving to the Inner City each day to work or attend institutions such as the University, a high demand exists for all-day

parking facilities. The all-day parkers, in turn limit the number of short term parking spaces available in shopping areas, at entertainment facilities, or major institutions. In addition, in several of the more densely populated Inner City neighbourhoods such as Oliver and Gameau there is a lack of parking space on the residential streets for second vehicles and visitors. The problem is not so much that Edmonton does not have enough parking spaces. Rather, there are not enough of the right kind of spaces available in the right place at the right time. To solve these problems, we must develop plans to ensure that more parking is provided in certain locations and that appropriate policies are developed to regulate its use.

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close certain routes to trucks. On the other hand, if too many routes are closed, the efficiency of the system is decreased as deliveries must follow roundabout routes, which increases costs to businesses and, of course, to consumers. Thus, it is necessary to strike a balance between these conflicting concerns and to find new ways to reduce the negative impact of truck routes in residential areas.

Truck Traffic

The routing of truck traffic through the City is a problem from two points of view. On the one hand, truck traffic is annoying to residents living near truck routes especially on Inner City roads where there is little buffering. Consequently, there have been numerous situations of residents pressuring City Council to

"It is necessary to strike a balance between conflicting concerns. . . "

A LOOK AT SOME SOLUTIONS It is important to realize that in spite of the complexity of the problems identified above, various opportunities are available to the City to at least reduce the problems. The construction of new roads or the widening of existing routes with a minimum amount of disruption to land uses near the road may be possible in some cases. As well, continued encouragement of transit usage (especially through extensions to the Light Rail Transit system) and more efficient use of roadways could help to reduce the problems. Recent innovations which might be considered to reduce the problems include: • a coordinated system of traffic signals in the Inner City to increase the efficiency of the existing transportation network; • the implementation of programs designed to encourage staggered working hours and car-pooling for employees working Downtown; • the designation of special areas where auto use is restricted or prohibited between certain times of the day; • increased long and short term parking costs in the Downtown; and 9 the increased use of public transit for trips entering the City from surrounding areas.

Expected benefits of the Transportation Management System Reductions of: Before Travel Time 15-20%

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While these various opportunities and innovations can moderate the increasing time, cost and inconvenience associated with daily Downtown work trips in Edmonton, it is estimated that they cannot, on their own, contain the increasing pressure of automobile traffic in Inner City neighbourhoods and the Downtown. The City of Edmonton is severely constrained in implementing any or all of these opportunities, by the amount of funds which are or will be available from senior levels of government. As well, some of these solutions may not be acceptable to residents or elected officials. The challenge facing us today is to develop solutions which, over the long term, are effective as a solid financial investment in reducing transportation problems, and which are publicly and politically acceptable.

CURRENT TRANSPORTATION PLANNING IN EDMONTON In an effort to resolve or reduce the City's transportation problems, a number of programs are currently being carried out by the Engineering Department, the Edmonton Transit System, and the Transportation Planning Branch of the Planning Department. The two most notable projects underway at this time are the Transportation Plan and the Rapid Transit Extension Study. The Transportation Plan being undertaken by the Transportation Planning Branch is a comprehensive long range transportation planning study composed of three distinct parts which are: Part I development of City-wide policies on parking, roadways, public transit, etc. Part YE ongoing process involving the preparation of specific transportation studies such as the 125 Avenue Truck Route and 105 Street Bridge Studies. Part ifi development of a complete roadway and transportation network which will guide the City in its transportation planning process to the year 2001. Other transportation studies which are currently in progress, address specific problems relating to parking, truck movements and rail transportation. Concerning Light Rail Transportation, City Council has approved the "Rapid Transit Extension Study" which analyzed various combinations of Light Rail

EXISTING LRT WITH EXTENSIONS

MN EXISTING LRT LINE

Alternative LRT Alignment

NMI STAGE 1 EXTENSION

Possible Future Extensions

MN STAGE 2 EXTENSION

Main Bus Service

STAGE 3 EXTENSION STAGE 4 EXTENSION 5

Transit routes, ultimately recommending a City-wide light rail transit network as a means of reducing traffic congestion. Presently the Transportation Planning Branch is investigating in detail several alternative Light Rail Transit routes to the south side of the City, to service primarily the University and Mill Woods. It is expected that a final alignment will be selected by the end of 1979.

WHAT THE GENERAL PLAN CAN DO In order to reduce our long term transportation problems, the City must modify its existing patterns of land use development to complement the opportunities noted previously. This suggests a coordinated transportation! land use planning approach to the problems and this is where the Edmonton General Plan can have an effect. To illustrate this approach some options which could be considered in the General Plan include: â&#x20AC;˘ the provision of increased residential densities, employment

opportunities and shopping facilities in areas of good transit

"The City must modify its existing patterns of land use . . . "

service to achieve the most effective transit system possible

for the greatest number of people; â&#x20AC;˘ the provision of more housing opportunities in and near the Downtown area; and â&#x20AC;˘ the provision of additional suburban shopping and employment opportunities around Light Rail Transit stations and regional shopping centres and in industrial areas, as a means of reducing the number of trips to the Downtown Area. By taking advantage of opportunities such as these, the new

General Plan can direct new development into locations where it will support, rather than detract from, the future transportation network. In addition, a vital function of the Plan will be to determine the location and timing of growth. By determining where future residential and employment growth will take place, the Plan will modify future travel patterns. In this way the planning process may have a significant influence on the direction and length of trips, as well as travellers' choices between transit and the automobile. Furthermore, the General Plan will set out general policies to guide other aspects of transportation such as: • parking • bikeways • pedestrian facilities • roadway development • public transit • rail and air transportation • transportation impacts upon land uses • the distribution of available funds, etc. While the new General Plan cannot provide a total solution to the City's transportation problems, it can determine a feasible land use pattern

"It is important that the public participate in the General Plan . . . "

Concerning the specific transportation studies currently being undertaken by the City, there are opportunities for citizens to express their views through public meetings, direct citizen group input, surveys and questionnaires. In addition to these opportunities, it is important that the public participate in the General Plan Review process so that they can influence the overall direction which the City may take with regard to land use and the long term development of the City's transportation system.

to support the development of a balanced roadway/public transit system which: • has a minimal impact upon adjacent land uses; • encourages efficient traffic movements; and • reduces the overall cost of providing a transportation system. 7

KEEP IN TOUCH The above issues and solutions are just a few that have been identified by the General Plan Review Team as areas for major study. Are there other issues which you consider important which should be addressed here? If so, the General Plan Review Team wants to know about them. This Issue Paper is one of a series of discussion papers which have been prepared on several topics including the Suburbs, the Downtown, Transportation, the Inner City, and Parks and Recreation. These papers are intended primarily for information, although any comments, criticism or suggestions which may arise from these papers are welcomed by the Team. For complete information about the General Plan Review and how you may participate, please refer to A Citizen's Guide to the Edmonton General Plan—Issue Paper No. 1. 8

For further information about the contents of the Issue Papers or about the upcoming citizen participation program for the General Plan Review, please contact: Ken Johnson, or Greg Barker, General Plan Review Team, City of Edmonton Planning Department, 1405 Centennial Building, 10015 - 103 Avenue, Edmonton T5J OH1 Telephone: 428-3536.

GENERAL PLAN ISSUE PAPERS 1. 2. 3. 4. 5. 6. 7. 8. 9. 10. 11. 12.

THE CITY OF t

. . . planning for our future

Edmonton General Plan Plcuining Departmo.n.

LIBRARY 1134 City of EcimositoL

PARKS AND RECREATION

monton

@THE CITY OF

PLANNING FEBRUARY, 1979

COMMONWEALTH STADIUM

30 25 23

11 28 12

9 29 8

13 14 15

1 HERMITAGE PARK 2 RUNDLE PARK 3 GOLD BAR PARK - 4 CAPILANO PARK 5 RIVERSIDE GOLF COURSE 6 HIGHLAND GOLF COURSE 7 MUTTART CONSERVATORY 8 MILL CREEK PARK 9 KINSMEN PARK 10 VICTORIA GOLF COURSE

11 MAYFAIR GOLF COURSE 12 WILLIAM HAWRELAK PARK 13 BUENA VISTA PARK 14 LAURIER PARK - VALLEY ZOO 15 WHITEMUD PARK 16 WHITEMUD RAVINE - RAINBOW VALLEY 17 FORT EDMONTON PARK 18 TERWILLEGAR PARK 19 MILL WOODS PARK AND GOLF COURSE 20 SOUTH INDUSTRIAL PARK

21 NORTHWEST SPORTS CENTRE 22 NORWESTERN INDUSTRIAL PARK 23 HILLDALE INDUSTRIAL PARK 24 BEECHMOUNT CEMETERY 25 EDMONTON CEMETERY 26 MOUNT PLEASANT CEMETERY 27 STURGEON CEMETERY 28 EMILY MURPHY PARK 29 QUEEN ELIZABETH PARK 30 CORONATION PARK

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years. The rapid growth of the City's population together with trends toward fewer hours of work, earlier retirement, and rising incomes, has increased the demand for recreation opportunities. Recreation demands are not only growing but they are changing and becoming more diversified. Demands extend beyond the general provision of parks, athletic fields, pools and arenas, to include requests for specialized cultural facilities and new amenities such as all-terrain vehicle sites, racquetball and squash courts and skateboard parks. Some of the dominant trends emerging in recreation demands are the following:

RECREATION: MEETING HUMAN NEEDS Recreation serves many of man's physical, psychological, and social needs. Through recreation, man renews his spirit, explores his potential, develops friendships and expresses himself. Recreation enriches the lives of both the individual and the community. It is the City's goal to ensure that all citizens have opportunities for recreation. The Department of Parks and Recreation has recently prepared a Master Plan

This issue paper will briefly review the direction of the new Parks and Recreation Master Plan and will describe the role of the General Plan in the area of parks and recreation. Some of the issues and problems involved in the planning and provision of parks and recreation facilities will be discussed. Possible solutions, and actions now underway to remedy the problems identified, will also be noted.

RECREATION DEMANDS: GROWING AND CHANGING

â&#x20AC;˘ Participation in most outdoor related activities has grown rapidly over the past five years. Activities such as hiking, skiing, cycling, golf, horseback riding and cross-country skiing are increasingly popular. â&#x20AC;˘ Active sports and athletic activities have remained very popular, but little growth in participation has occurred in recent years. The exceptions are soccer, golfing, physical fitness, tennis, raquet sports and ice-skating, which have shown recent high rates of growth. There is a trend toward more participation in individual sports rather than team sports.

The demand for parks and recreation facilities in Edmonton has grown substantially over the last several

for the period 1979-1983. The policies and programs outlined in this plan, together with supporting policies in the new General Plan, will help the City meet its recreational goal. 1

PARKS AND RECREATION ISSUES

â&#x20AC;˘ There has been increased participation in the visual and performing arts and crafts activities. Demand for recreation activities such as photography, drawing, painting, ceramics, macrame, drama and other social-cultural activities is likely to grow steadily in the future.

The following parks and recreation issues have been identified through the preparation of the new Parks and Recreation Master Plan, the General Plan Review, ongoing community planning activities and the recent Neighbourhood Planning Conferences:

While there has been extensive development of major recreation facilities in Edmonton over the last several years to meet the growing and changing demands, there is still much to be done in the some residents have asked that park space be more evenly distributed..."

provision of district and neighbourhood parks, recreation facilities, and services. Some of the issues and problems with regard to parks and recreation in the City will now be considered.

2. Distribution of Parks in New Residential Areas Planning policies have tended to concentrate open space in new subdivisions into large school ground/park sites designed for active recreation uses. Some of the residents of these new areas have asked that park space be more evenly distributed throughout the neighbourhood to a number of smaller parks. They have noted that the distribution of parkland throughout a neighbourhood would contribute to its visual attractiveness and provide recreation areas that are safe and accessible to young children. These benefits, however, do not come without disadvantages including maintenance costs, the loss of integrated park usage, and the loss of a central neighbourhood focus.

1. Inadequate Parks and Recreation Facilities in Inner City Areas Residents of Inner City neighbourhoods such as Oliver, Norwood, Alberta Avenue and Eastwood, have pointed out the need for more parks and recreation facilities in their areas. Many older neighbourhoods lack parks because they were developed before open space standards were in effect. The trend toward higher density redevelopment is placing more pressure on the existing limited facilities. The high cost of Inner City land means that considerable funds must be used to acquire even a small park. Since the lack of vacant land in the Inner City means that existing buildings must be torn down to create a park, there is also conflict between the need to conserve older housing and the need for parks.

3. Scheduling of Parks and Recreation Development in the Suburbs The rapid growth in residential subdivisions around the City and limited City funds, has meant that new park sites and recreation facilities are usually not developed until sufficient populations have been reached in the new neighbourhoods to support these facilities. Citizens living in new suburban neighbourhoods have requested that parks be developed as the area is developed and not three to five years later.

4. North Saskatchewan River Valley Development The river valley and its ravine system offers Edmontonians and the residents of the region a unique recreation and scenic resource. The recreational potential of the river valley has been developed over the years by the City and most recently through the Capital City Recreation Park project. The Provincial Government has funded the development of the Capital City Recreation Park. Development of the Capital City Recreation Park from the High Level Bridge to the west corporate limits of the City would consolidate the recreational use of the System. Unfortunately, it is not possible for the City to undertake this project on its own because of the enormous cost of land acquisition, development and subsequent maintenance and operation.

6. More Recreation Services Needed To accommodate the increased demand for athletic and outdoor recreation activities more facilities and programmes are needed. Increased participation in activities in the cultural area indicates that greater emphasis must be placed on developing these facilities.

7. Limited Parks and Recreation Funds The City's ability to meet increasing demands for parks and recreation facilities and services is constrained by limited financial resources and the rising costs of land and services.

Approximately one-third of the City's funds for capital expenditures are provided by the Provincial Government's Major Cultural/Recreation Facility Development Program. This program is scheduled to end in 1984. If alternative sources of funding do not become available after this date, substantial reductions in spending on parks and recreation facilities will be required. In order to better allocate the City's limited funds, the Parks and Recreation Department has developed a neighbourhood typology as a basis for meeting the particular parks and recreation needs of different neighbourhoods.

NEIGHBOURHOOD TYPOLOGY

Meanwhile, as Edmonton grows, there is pressure on the river valley to accommodate urban uses. Developments such as roadways, utility lines, pipelines and housing, in the valley and on the crest of it, are constantly being proposed. It is important that steps be taken to manage this development and protect the river valley environment.

5. Lack of Private and Public Open Space in the Downtown The Downtown is characterized by the greatest intensity of daily activity in Edmonton, yet has proportionately less open space for recreation than any other area in the City. More open space such as plazas, squares, and small parks distributed throughout the core area would improve the Downtown environment by providing places where people might relax, meet other people and stage cultural events.

Older neighbourhood (medium to high density) Older neighbourhood (low to medium density) -0Middle aged neighbourhood (medium income) 7 Younger to Middle aged neighbourhood IIli= Middle aged neighbourhood (medium to high income) Newly developing neighbourhood

TOWARDS RESOLVING THE ISSUES

PARKS AND RECREATION MASTER PLAN PROPOSED DEVELOPMENT PROGRAM 1979 - 1983

1. The Edmonton Parks and Recreation Master Plan 1979 - 1983 A Parks and Recreation Master Plan for the City of Edmonton has recently been completed. The major purpose of this Plan is to provide a detailed set of guidelines for the development of open space, facilities, and programs to meet the City's recreation requirements for 1979-1983. While the Master Plan establishes many policies and guidelines which have long-term implications, it will essentially serve as a shortterm, five-year implementation plan linked to the budgeting process of the Parks and Recreation Department. The Plan includes specific recommendations on facilities, programs, and parks, and identifies priorities in these areas through budget commitments.

development of 35 new neighbourhood school and park sites

upgrading of district athletic grounds construction of an indoor swimming pool

additional land or intensified upgrading in 7 neighbourhoods which have been identified as having gross parkland deficiencies completion of 83 existing neighbourhood parks redevelopment of 12 neighbourhood parks in older areas completion of 7 existing district parks and athletic grounds

construction of 16 tennis courts in district parks development of facilities for cultural activities continued development of Fort Edmonton Park and the Valley Zoo development of additional space for district yards and offices continued development of Terwillegar Park

development of 2 new district parks and athletic grounds

land acquisition in the North Saskatchewan River Valley

development of downtown open space construction of one artificial ice arena

general improvements to parks and facilities

development of one major city wide athletic park

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Although the Master Plan addresses a number of concepts for improving the level of service provided to the public, two basic concepts were identified as key elements on which to prepare action plans. These are: 1. That neighbourhood parks receive greater budgetary emphasis in terms of new park developments, upgrading of parks and intensification of park development.

2. That more emphasis be placed on encouraging community involvement, and assisting communities in providing for their own recreation needs, rather than the Department providing a greater number of direct recreation opportunities. City Council's Public Affairs Committee is currently reviewing the Parks and Recreation Master Plan.

b) to preserve the river valley and ravine system as an environmental protection area; and c) to preserve and rehabilitate Riverdale, and to support the communities of Cloverdale, Lavigne and Rossdale remaining so long as circumstances permit their viability.

HIGHLANDS GOLF COURSE

RIVERSIDE GOLF COURSE;:-:n

GOLD BAR PARK

,HUMANITIES PARK --IT c9

MUTTART CONSERVATORY EDMONTON SKI CLUB

A number of the concerns and issues that have been raised with regard to parks and recreation in the City have been addressed in the recommendations of the Parks and Recreation Master Plan. The solutions posed by these recommendations as well as other actions which the City is taking toward resolving the issues are discussed below.

2. Managing Development in the River Valley The City's policy objectives for the river valley and ravine system are: a) to acquire land in the river valley and ravine system for the development of public parks;

The Planning Department has already completed the plan to revitalize Riverdale. The Department is currently preparing a North Saskatchewan River Valley Area Redevelopment Plan Bylaw. The Bylaw will establish a procedure for controlling land use and development in the river valley to achieve the City's long range objectives of environmental protection and parks development. "more emphasis should be placed on community involvement and assisting communities in providing for their own recreation needs."

As a definite step toward ensuring the earlier provision of parks and recreation facilities in new residential areas, the Parks and Recreation Department has assigned higher priorities and a corresponding increase in its capital budget to the development of neighbourhood parks.

3. Improving Parks and Recreation Facilities in the Inner City Neighbourhoods Due to the high cost of land and the trade-off which must be made between the need for housing and park expansion, it is likely that the open space deficiencies that exist in many of the Inner City neighbourhoods will not be relieved in the near future. However, existing open space and land that is acquired could be more intensively developed with facilities and amenities to provide a broader range of recreation opportunities for a greater number of people. This is the approach to improving Inner City parks and recreation facilities which the City Parks and Recreation Department proposes to follow. The Alberta Planning Act provides for the collection of a redevelopment levy in neighbourhoods undergoing redevelopment. Before the levy is imposed, an Area Redevelopment Plan for the neighbourhood must be prepared and adopted by City Council. The Parks and Recreation Master Plan supports the use of the Redevelopment Levy to provide funds for park acquisition in the Inner City. The City is presently developing guidelines for implementing the redevelopment levy. As another solution to the problem of inadequate parks and recreation facilities in the Inner City neighbourhoods, the Parks and Recreation Master Plan has also suggested that the City's Land Use Bylaw require that developers of high density housing and commercial sites in these areas incorporate park space, games rooms, and other recreation facilities into their projects.

5. Developing a Greater Variety of Parks in new Residential Areas

4. Earlier Development of Parks and Recreation Facilities in the Suburbs In the majority of cases, at present, land for parks in new subdivisions is dedicated by the developer in accordance with requirements of the Planning Act and the City develops the parks when funds are available. The Parks and Recreation

"existing open space could be more intensively developed to provide a broader range of recreation opportunities for a greater number of people." Master Plan has proposed that the current Standard Residential Servicing Agreement be revised to include the full development of neighbourhood school and park sites and boulevard tree planting on streets as the responsibility of the developer in new subdivisions. Consideration is also being given to adding local improvement levies for park development purposes. City Council has referred these proposals to its Public Affairs Committee for review.

The City Parks and Recreation Department is acting now to resolve the issue of parks distribution in new residential areas. The Joint Use Agreement, under which the Parks and Recreation Department and School Board agree to develop and hold jointly certain lands for recreational purposes, is being reviewed to see if the formula for allocating lands reserved for parks can be renegotiated and the design programs for school playing fields could be altered. The Parks and Recreation Department has also initiated a study to determine the location, type and size of neighbourhood parks needed. Encouraging private developers of multiple housing sites to provide tot lots and community space in their projects is another solution being considered by the Parks and Recreation Department.

6. Providing More Parks and Open Space in the Downtown The amount of park and open space development in the Downtown is dependent both upon the financial capability of the City and on legal instruments or incentive programs that require or encourage the private sector to provide open space.

Rapidly rising land prices in the Downtown are reducing the purchasing power of the City's parks and recreation funds. For this reason, a greater responsibility might be placed on the business community in the future to develop parks and recreation facilities in the central area. The Parks and Recreation Master Plan has made the specific recommendation that the City require developers and commercial establishments to undertake development of open space and beautification projects in the Downtown through local improvement levies.

The City's efforts to improve parks and open space in the Downtown in the future will include planning, designing, and some funding of open space development. The Parks Master Plan proposes that the City develop small temporary parks on vacant land, leased or City-owned, in the downtown area. A comprehensive plan for the Downtown presently being prepared by the City Planning Department will help to guide the future improvement of parks and open space in the City's central area. The Downtown Plan will establish detailed policies for the provision of downtown parks and open spaces and it will outline methods for land aquisition, development, financing, and management.

7. Meeting Increased Demands for Parks and Recreation Facilities Throughout The City The guidelines, policies, recommendations and capital expenditures program of the Parks and Recreation Master Plan for 1979-1983 together are directed to meeting the increased demand for parks and recreation facilities in Edmonton. The following points summarize the Master Plan strategy for meeting increased demands:

a) Increased utilization of community resources The Parks and Recreation Department proposes to direct a larger portion of its resources toward assisting community groups and organizations. By mobilizing and coordinating available community resources, the delivery of recreational services will be increased.

b) Expanded role of the private sector in the provision of parks and recreation facilities The Parks and Recreation Master Plan calls for increased responsibility of the private sector in developing parks, open space and recreation facilities in the City.

Improved Parks and Recreation Planning The parks and recreation needs of a community can be met more effectively through better planning. The analysis of City neighbourhoods that was carried out during the preparation of the Parks and Recreation Master Plan, and increased citizen involvement in the development of facilities, parks and programs, will ensure that the City's limited funds are spent most appropriately.

d) Continued Provincial Government Funding The Master Plan requests the extension of provincial government funding for the Major Cultural/ Recreational Grant Program and the Capital City Recreation Park.

"Rapidly rising downtown land prices are reducing the purchasing power of Parks and Recreation funds."

THE GENERAL PLAN AND THE PARKS AND RECREATION MASTER PLAN The General Plan is a guide for managing Edmonton's growth over the long-term. The new General Plan will look to the year 2001 though its main emphasis will be the period 1979-1991. It will define an overall urban growth strategy and will set out broad policies regarding the future development of land for residential, commercial, industrial, transportation and other uses. The General Plan will provide a framework for decision-making on planning matters by City Council and will guide the preparation of more detailed plans such as Edmonton's Downtown Plan, Transportation Plan and various Community Plans. As a long-term plan, the General Plan will guide the preparation of the shorter-term Parks and Recreation Master Plan. It will establish broad policies and requirements for parks and recreation facilities in the City. The growth strategy selected in the new General Plan for Edmonton will have certain implications for the planning of parks and recreation facilities in the City. For example, if a decision is made to increase residential densities in the Suburbs or redirect population growth in the Inner City neighbourhoods, then there will have to be corresponding improvements in the recreation amenities provided in those areas. Together the General Plan and the Parks and Recreation Master Plan will help the City achieve its recreation goals and objectives.

"The growth strategy selected will have certain implications for the planning of parks and recreation facilities."

FOR FURTHER INFORMATION This Issue Paper is one of a series of twelve papers which have been prepared on several topics including the Suburbs, Transportation, the Downtown, Housing Costs, and Economic Development. These papers are intended primarily for information, although any comments, criticism or suggestions which may arise from these papers are welcomed by the Team. For complete information about the General Plan Review and how you may participate, please refer to A Citizen's Guide To The Edmonton General Plan - Issue Paper No. 1.

Copies of the Issue Papers are available at the following locations: • Information Desk, Main Floor, City Hall; • Maps and Publications Desk, Planning Department, 7th Floor, City Hall; • Government Information Division, 2nd Floor, Centennial Library; • All City of Edmonton Branch Libraries • All City of Edmonton: Parks and Recreation District Offices; Neighbourhood Improvement Program (NIP) Field Offices; and Social Service Centres. For further information about the contents of the Issue Papers or about the citizen participation program for the General Plan Review, please contact: Ken Johnson, or Greg Barker General Plan Review Team, City of Edmonton Planning Department, 1405 Centennial Building, 10015 - 103 Avenue, Edmonton, T5J OH1 Telephone: 428-3536.

GENERAL PLAN ISSUE PAPERS 1. 2. 3. 4. 5. 6. 7. 8. 9. 10. 11. 12.

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CITIZEN PARTICIPATION ISSUE PAPER NO.

1-Dwavitli4

THE CITY OF

PUNNING FEBRUARY, 1979

INTRODUCTION Edmonton's rapid growth over the last decade has placed heavy demands on residents and government to accommodate changes arising from that growth. In response to the social effects of change, citizens are demanding to become more involved not only in the immediate decision-making functions of municipal government but also in the preparation of long range plans. With the growing interest of residents in becoming involved in decision-making on important issues, attitudes of various groups in society towards citizen participation have changed. Special interest groups such as neighbourhood committees and development industry associations have become increasingly aware of the effects of planning for growth and now want to have a more influential role in directing the future of the community. Administrators are

becoming more receptive to citizen participation because they realize that involving the public in the planning process leads to more readily acceptable and implementable plans. Elected officials are also viewing increased public involvement as a means of strengthening their roles as elected representatives by gaining more thorough input on residents' views on issues.

"...citizen involvement will help ensure that the General Plan reflects the needs and priorities of the community"

The citizens of Edmonton are being asked to participate in the preparation of a new General Plan for their City. This citizen involvement will help to ensure that the General Plan, as the blueprint for Edmonton's future growth, reflects the needs and priorities of the community. Citizen participation in the preparation of the General Plan will also provide

THE EDMONTON GENERAL PLAN AND CITIZEN PARTICIPATION

an opportunity to identify ways in which the citizens can be involved in the planning and approval processes as a matter of course. The role of citizens in implementing the General Plan could also be defined during its preparation.

ROLE OF CITIZEN PARTICIPATION 1. What We Mean by Citizen Participation There are various definitions and understandings of what is meant by "citizen participation". Generally, we can say that it represents involvement by citizens in the planning and decision-making activities of government beyond elections. There are several familiar ways in which this involvement takes place, a few of which are questionnaires, surveys, public meetings, hearings, and various advisory committees or associations. Which of these tools are used in any particular program depends on the level of

City Planning Department forms a Project Team to review the existing General Plan and other government policies and programs.

Phase One Identification of Issues

participation that is desired. The levels of participation may be categorized into four types, each implying a different meaning of citizen participation: a) Information -places emphasis on sending information from government to citizens for the purpose of creating a more informed public, but is not intended to promote a sharing of decisionmaking power. b) Consultation -emphasis is on providing citizens with information on policy options and receiving their comments; these comments are then taken into consideration when the government forms its policies. c) Partnership -emphasizes sharing the planning and decision-making power with citizens by allowing them to develop and evaluate policies in conjunction with government through such vehicles as advisory committees.

d) Delegated Authority -in this case, decisions are made by the citizens themselves; for example, this can take place through plebiscites or special local area councils.

Why is Citizen Participation Desirable?

Some advocates of citizen participation have argued that the continued involvement of the public beyond elections is a right based on the principles of democracy. To some extent participation is a right and is ensured by Provincial legislation such as The Planning Act, 1977. Section 60 of the Act states: "A council shall, during the preparation of a general municipal plan, provide an opportunity to those persons affected by it of making suggestions and representations."

"...participation can strengthen the democratic process."

However, from a more pragmatic viewpoint, citizen participation can be shown to have potential benefits for the day-to-day operation of government, and for residents, both individually and collectively. Here are a few of the often noted benefits:

Data is collected and growth projections prepared. Preliminary identification of existing and future planning issues through: 1. Analysis of growth projections.

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• Participation can help to educate both the public and government; • on specific issues, participation can lead to better decisionmaking because the people affected by decisions can clarify issues and identify priorities;

3. What Problems are There With Citizen Participation? The involvement of citizens in the planning process is not without its problems. Time and money are always of concern, and citizen

participation usually requires that additional commitments of these resources be made by government, individuals, and special interest groups. Participation can also impose delays on the approval of individual development proposals. Additionally, there is always the

• participation can strengthen the democratic process by making government more accessible, responsive, accountable; • participation can be developmental through its encouragement of new leadership, individual responsibility, and community interaction; and • participation can assist in the implementation of a policy by securing citizens' support and understanding during its development.

2. Current planning activities in the City such as: Neighbourhood Improvement Programs, Community Planning Program, West End Transportation Task Force.

3. The Mayor's Neighbourhood Planning Conferences.

1.ITY Pt ACK DIPARTMIII

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difficulty of working with the widely differing interests of various groups some,with very personal and localized views of issues and others with broader city or regional views. However, if public participation leads to improved decision-making, or policies and programs which reflect needs more adequately, then the additional short term costs, effort, and commitment required to overcome the problems noted above can result in real long term savings or benefits.

CITIZEN PARTICIPATION IN EDMONTON: RECENT EFFORTS Citizen participation is not a completely new activity in the operation of municipal government. Over the last decade, Edmonton's City Council has supported citizen participation and shown an earnest concern over the form it takes. Various Citizen Participation Committees appointed by Council between 1973 and 1977 established

"...Edmonton's City Council has supported citizen participation..."

guidelines for developing a citizen participation policy and a means by which the activities of various Civic departments would implement this policy. City Council has also encouraged citizen participation in planning and is particularly aware of the way in

which planning decisions affect how people feel about the quality of their area. For this reason, citizen participation has been encouraged at all scales, from the neighbourhood to the City-wide level, and from short term to long term planning.

1. Participation at the Neighbourhood Level Participation in neighbourhood planning has become wide spread in Edmonton in the last decade with resident concern about the revitalization of older neighbourhoods. Since 1971, the City of Edmonton has become increasingly involved with local residents in neighbourhood planning activities. The Canora Neighbourhood Improvement Program which formally began in 1973 represented an important first step by residents and the City of Edmonton. With financial assistance from all three levels of government, residents were responsible for identifying issues and establishing priorities for the use of neighbourhood improvement funds.

Phase Two Evaluation of Alternatives

Planning Department produces a statement of issues and possible solutions for public information and discussion. The Edmonton Social Planning Council is contracted by the Planning Department to facilitate the General Plan Citizen Participation Program in January, 1979

Alternative solutions are reviewed and a preferred growth strategy for the City is identified by the Planning Department. This information is published in the Citizens' Preview.

The response and acceptance which citizen participation received from residents, administrators, and elected officials set the tone for citizen participation in later Neighbourhood Improvement Program areas. These early efforts also encouraged citizen participation in another older neighbourhood program, the

Community Planning Program, which has been developed and operated solely by the City of Edmonton. As a result of these efforts, extensive participation of residents and various interest groups is an accepted and indeed, an expected part of a valid neighbourhood planning process.

2. Participation at the District and City-Wide Level Citizen participation in the preparation of the Land Use Plan for the Northeast Light Rail Transit Corridor, in the South Light Rail Transit Study (now underway), and in the efforts of the West End Transportation Task Force, are examples of participation at a district scale, where several neighbourhoods and associations are involved in identifying both unique and shared planning concerns. Participation has also been encouraged on a City-wide scale during the preparation of policies and plans such as the Parks and Recreation Master Plan and housing policies. Perhaps the most extensive effort to encourage participation on a City-wide scale to date occurred with the Neighbourhood Planning Conferences, initiated early in 1978. During the Neighbourhood Planning Conferences, some 85 groups from older and newer neighbourhoods were involved in the identification of concerns and

Open Houses and General Plan displays held throughout the City will provide information and opportunities for further public comment.

Citizens workshops will be held by the Planning Department and the Edmonton Social Planning Council to permit everyone interested to discuss the alternative courses of action outlined in the Citizens Preview.

issues. The input from these Conferences will be invaluable in contributing to the identification of issues to be addressed in the General Plan.

CITIZEN PARTICIPATION: 1 FUTURE OUTLOOK

Citizen participation is not entirely new; it has just begun to gain momentum and become more visible. As benefits from participation have been realized, we have witnessed increasing demands for participation at all levels of decision-making. What is required at this time is a framework in which to establish the process for improving citizen participation in resolving planning issues, whether they be localized or general long range issues. This is where the General Plan will be important.

The primary purpose of the General Plan will be to direct the growth of the City to ensure that it occurs in an orderly and efficient manner. The General Plan will provide overall direction to the more detailed planning processes, and will include establishing guidelines for the role of citizen participation. In preparing guidelines for citizen participation, consideration will be given to the following types of factors:

"...primary purpose of the General Plan will be to direct the growth of the City..."

REPORT BACAk

The citizens' input from Phases 1 & 2 will be summarized in a "Report Back" citizen participation paper. This document will analyze all of the citizens' concerns and priorities.

In what types of planning decisions are residents interested, and when is detailed participation most beneficial?

What are the time requirements and costs of this participation?

c) How might participation be structured to account for the different interest levels and capabilities of communities? d) What services might be required to enable residents to become involved? Another way in which citizen participation might be affected by the General Plan is through District Planning. In preparing policies to implement the General Plan, consideration is being given to establishing a "District Planning Program". Such a program would permit a more extensive provision of planning services and resident involvement in detailed planning efforts. "District Planning" would represent a middle level between the General Plan for the whole

The Planning Department will prepare the final General Plan recommendations. The "Report Back" paper will provide an important basis for the recommendations.

The General Plan will be submitted to City Council for first reading.

City and Neighbourhood Planning for small areas of 30-40 blocks. For example, a district might consist of 10 or more neighbourhoods. The main purpose of District Planning would be to deal more effectively with localized land use and transportation issues which are not City-wide, but which do affect a large sector of the City. Most land use problems are not restricted to one small neighbourhood, and cannot be effectively resolved at that level. If such an approach were established, citizens in these districts could formally organize themselves to deal with planning issues, and could seek to be recognized in various facets of the planning process on an ongoing basis. Through the establishment of new directions for detailed planning and citizen participation in the planning process, the objective of the General Plan will be to provide a working basis for the continued involvement of residents in decisions affecting the quality of their urban environment.

THE GENERAL PLAN AND YOU The current review of the General Plan will result in long range planning policies that will guide the growth of Edmonton for the next 10-20 years. During the revision of the Plan, a citizen participation program will be undertaken to inform and involve residents in discussions on the future direction of Edmonton. Through the use of citizens' workshops, open houses, newspaper articles, and information displays, residents will be encouraged to identify problems and solutions, and to discuss the City's various growth options.

What policies should we have for citizen participation in long range planning? Do you want more opportunities to participate? In what types of issues do you want a say? The General Plan Review Team would like to hear from you! With your help, the General Plan can establish policies to ensure that the right type of input is received in dealing with planning issues.

"What policies should we have for citizen participation in long range planning?"

As the final stage in the General Plan citizen participation program, formal public hearings will be held by City Council to enable citizens to make their official presentations.

A Resource Centre will be set up by the Edmonton Social Planning Council to help individual citizens and interested groups to prepare briefs which document their concerns dnd priorities. 7

This Issue Paper is one of a series of twelve Discussion Papers which have been prepared on several topics including the Suburbs, the Downtown, Transportation, the Inner City, and Parks and Recreation. These papers are intended primarily for information, although any comments, criticism or suggestions which may arise from these papers are welcomed by the Team. For complete information about the General Plan Review and how you may participate, please refer to: A Citizen's Guide to the Edmonton General Plan - Issue Paper No. 1.

For further information about the contents of the Issue Papers or about the citizen participation program for the General Plan Review, please contact: Ken Johnson, or Greg Barker General Plan Review Team, City of Edmonton Planning Department, 1405 Centennial Building, 10015 - 103 Avenue, Edmonton, T5J OH1 Telephone: 428-3536.

AFTER THE GENERAL PLAN IS ADOPTED... The General Plan will establish a process for ongoing citizen involvement in planning activities related to the implementation and monitoring of the Plan.

The Edmonton Social Planning Council will produce an evaluation of the General Plan public participation process and present their report to City Council.

GENERAL PLAN ISSUE PAPERS 1. 2. 3. 4. 5. 6. 7. 8. 9. 10. 11. 12.

THE CITY OF

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HOUSING COSTS ISSUE PAPER NO.

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INTRODUCTION The rising cost of housing in Edmonton has received much public attention. The following figures describe the situation over the last several years for both ownership and rental housing: â&#x20AC;˘ Housing Prices: During 1975 and 1976 the average price of residential property sold under the Multiple Listing System in Edmonton showed increases of 27 percent and 33 percent respectively. While

HOUSING PRICE TRENDS 70

THOUSANDSOFDOLLARS

40 AVERAGE, ALL CANADIAN CITIES !32,306 30 26,595 25

24 58'

1971 1972 1973 1974 1975 1976 1977 YEAR

"Housing prices in Edmonton have tripled since 1972..."

The Task Force on Housing Costs in Edmonton included representatives of the City of Edmonton, the Province of Alberta, and the development and building industries. The Task Force has recently submitted the results of their study to City Council for review.

Housing prices in Edmonton have thus tripled since 1972, when the average selling price of residential property in our City was $24,000. â&#x20AC;˘ Rents and Vacancy Rates: During 1975, average rental prices in Edmonton increased by 13 percent while rents in 1976 rose by 11 percent. From January 1977 to date, rents have increased by approximately 23 percent. Edmonton's apartment vacancy rate dropped from 7.6 percent in 1972 to 0.1 percent in 1977 giving the City the lowest vacancy rate in Canada. In spite of increased levels of apartment construction, the overall vacancy rate now stands at only 3.0 percent. This is a minimum acceptable level to provide some choice of accommodation to renters and ensure a competitive market.

the level of price increase was limited to approximately 6 percent in 1977, data for 1978 indicates that the rate of inflation in housing prices is increasing again. The average selling price of a house in Edmonton rose from $62,000 in 1977 to $71,700 in 1978, an increase of 14 percent.

The phenomenon of rapidly escalating housing prices is not unique to Edmonton. It has been experienced in all urban centres throughout Canada during the 1970's. What makes the situation in Edmonton of particular concern is that all signs point to continuing price increases into the early 1980's during the energy related economic boom that Alberta is experiencing. The prospect of continued increases in housing prices led the City last year to form a task force to investigate ways of reducing the cost of housing.

WHY HOUSING COSTS ARE AN ISSUE Housing costs are highlighted as an issue for discussion in the General Plan review because they are of concern to the people of Edmonton who must allocate a greater and greater proportion of their income to paying for shelter. It is, therefore, important to clarify what the City can and cannot do to combat housing price inflation, drawing particular attention to the role of the Edmonton General Plan in this regard.

APARTMENT VACANCY RATES 8

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0 1970 1971 1972 1973 1974 1975 1976 1977 YEAR

HOUSING PRICES AND INFLATION 1971 - 1977 280 262.8

260

• More and more households and individuals demanding shelter and being willing to pay the prices being asked.

245.5 240 NEW HOUSING PRICE INDEX EDMONTON SINGLE DETACHED UNITS

220

205.3

205.2 200

187.9 172.6 160

INDEX OF RESIDENTIAL - CONSTRUCTION COSTS

167.8

132.6

138.5 123.8

120 109.1 ...-100 -100

1071 -104.8-

160.8

148.9

147.7

140

112.7

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CONSUMER PRICE INDEX (1971=100) i I

1971 1972 1973 1974 1975 1976 1977 YEAR

WHY THE PRICE OF HOUSING IS RISING Prices of housing in Edmonton have risen and may continue to rise because of: • Shortages in the availability of residential land. • Investment and speculation in land and housing.

• Increases in the cost of producing housing.

Most housing studies, including the report prepared by the Task Force on Housing Costs in Edmonton, conclude that there is no one main cause, but that there have been a number of factors which have contributed to the housing cost inflation which Edmonton has experienced during the 1970's. Housing prices have risen because: • Housing demand accelerated; The demand for housing by families and single individuals increased dramatically in the 1970's. Edmonton's population has steadily increased as a result of Alberta's buoyant economy. More important, growth in the number of households has increased even more rapidly due to such factors as the high rate of family formation by children of the postwar baby boom, and the growth in the non-family households due to such factors as increasing divorce rates. • Household incomes rose: The personal disposable income of Edmontonians rose at an average annual rate of 14 percent between 1972 and 1977. This increase, coupled with a growing number of two-income families, further contributed to the demand for housing by enabling many Edmontonians to pay for increased shelter costs.

• A growing economy has attracted investment: Alberta's

energy-related development boom made the Province very attractive for investors and increased the competition for scarce urban land. Since 1974, Edmonton and Calgary have become very attractive areas for investment in real estate by a number of large land development companies. Speculation in land has served to boost the price of land available for development which in turn has had a direct and severe effect on the costs of serviced land and new housing.

• Inflation soared: The high rates

of inflation experienced in the early 1970's pushed up the major cost components of the housing market - land, labor, building materials, and financing.

RELATIONSHIP OF LAND COSTS TO THE PRICE OF HOUSING IN EDMONTON 1972 - 1977 70

• Housing became an attractive investment opportunity:

Individuals and companies, faced with rapidly rising inflation rates, added to demand by investing in durables such as land and housing to protect themselves from the negative effects of inflation.

COSTS OF BASIC COMPONENTS OF HOUSING IN EDMONTON 1972 - 1977 70

The elimination of the Capital Cost Allowance which occurred with changes in the Federal Income Tax Act (1972), served to discourage investment in new apartment building. The boombust cycle in rental construction which earlier resulted in the overbuilding of apartments and high vacancy rates, further contributed to a cautious investment climate. The introduction of rent controls in 1972 also served to discourage new apartment construction. The ensuing shortages of apartment units and rising rents added to the demand for non-rental accommodation.

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AVERAGE PRICE OF $20,cog RAW LAND (PER ACRE) $12,000i r i Tow $8,000 1972 1973 1974 1975 1976 1977 YEAR

• Government housing programs stimulated demand: Many new

Government programs and initiatives were established which had the net effect of further stimulating and encouraging the demand for housing. These included

programs which focused on providing subsidies to low and moderate income families, on easing down payment requirements, and on modifying mortgage regulations. These measures provided more and more potential buyers with the ability to afford the purchase of homes. â&#x20AC;˘ Land shortages pushed up costs: Rapid growth resulted in a higher than planned rate and amount of land absorption. Delays and reductions in the supply of land available within the City for development put upward pressure on the cost of residential land. â&#x20AC;˘ High expectations inflated demand: The combination of high demand, increasing ability to pay, rising costs, and accelerating inflation led people to adopt an inflationary psychology. People began to expect and accept that housing prices would continue to rise. Housing was bought as an investment with the expectation of considerable profits upon resale. In summary, unprecedented demand coupled with inflation, speculative investment, shortages in the supply of residential land and delays in housing production, have pushed up housing prices in Edmonton.

WHAT CAN BE DONE BY THE CITY OF EDMONTON The actions and initiatives which the City of Edmonton can take to deal with the various factors influencing the demand for housing are limited. Clearly, the City cannot directly control the national rate of inflation, Federal

"...unprecedented demand, inflation, speculative investment, shortages in the supply of land and delays have pushed up housing prices."

taxation policies, capital gains legislation, nor other factors such as the availability of mortgage money and the rate of interest charged for mortgages. Moreover, it cannot control the rate at which land development companies put housing on the market. The City cannot act alone to limit the costs of building materials or wages paid to construction workers. Finally, the City is not responsible for, nor can it control, the prosperous and ever growing economy of the Province of Alberta which has made Edmonton and Calgary the nation's prime centres of urban growth and development.

There are some factors affecting housing costs which the City can influence. These are related to the supply side of the housing process. In terms of direct initiatives, the City has undertaken land banking in Mill Woods and has directly assisted co-operative, non-profit and senior citizens groups by providing land for housing and/or developing and managing housing projects. The City can also influence housing costs indirectly through the development standards which it sets for new housing and through the approval process which it has established to ensure good planning. Some of these actions are discussed below.

1. City Land Banking In the late 1960's, in an attempt to guarantee the maintenance of an adequate supply of serviced land, the City participated in the Mill Woods land banking project which represented 4,500 acres of land. This land bank represented 70 percent of the total lands available in the Mill Woods area. The marketing and servicing of land began in the early 1970's and at present, it is anticipated that the City will finish servicing the Mill Woods project within two years.

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CITY OF EDMONTON DISTRICT OUTLINE PLAN AREAS 5

HOUSING CONSTRUCTION IN EDMONTON 1970 - 1977 YEAR

1970 1971 1972 1973 1974 1975 1976 1977

NUMBER OF HOUSING UNITS STARTED

4986 9541 6764 4722 3767 6947 10259 10651

Over the life of the project, substantial numbers of lots have been offered to builders and consumers at considerable savings. Since 1976, approximately 725 lots have been offered annually at subsidized costs to low and moderate income families. Because the cost of land, servicing, and transportation are increasing rapidly, and the amount of Cityowned land in expanding areas is negligible, it is unlikely that a land banking project on the scale of the Mill Woods experiment could be repeated in the near future.

2. City Housing Programs Apart from its land banking activities, the City has been active in a number of housing programs initiated by the Provincial and Federal governments. These include the Co-op Housing and Community Housing Programs and Senior Citizens Housing. The City has also established a Non-Profit Housing Corporation.

• Co-op Housing Program: The Co-op Housing Program commenced in 1973 with the objective of supplying low and moderate income accommodation to members of co-op groups. The City has leased land at 50% of market value or cost, whichever is greater, to these projects and has provided technical advice to the cooperatives. Some 295 units have been developed over the last five years in several locations around the City.

• Community Housing Program: Under the Community Housing Program, the City leases land to the Alberta Housing Corporation for low-income housing projects. As well as providing land, the City pays 10 percent of the operating deficit of these projects. City policy requires that 5 percent of the population in new subdivisions be accommodated in Community Housing. The Community Housing Program has made approximately 2,700 rental units available to low-income families and intends to provide an additional 400 units over the next two years if Community Housing vacancy rates are low enough to warrant new construction. • Senior Citizens Housing: In the area of Senior Citizens Housing, the City has programs which assist in the payment of operating costs for ten lodges which contain 520 beds. As well, the City sells land to the Province for self-contained senior citizens accommodation. • Non-Profit Housing Corporation: The most recent City housing initiative is the Non-Profit Housing Corporation which was created in 1978 with the objective of providing rental accommodation for low and moderate income individuals and families. The target objective for 1979 and subsequent years is an annual production of 130-150 units.

"Uncertainty about the future supply of land will drive up the price of land and housing..."

The development and implementation of these various programs which offer land and/or rental accommodation at costs that are lower than prevailing market rates, have had a direct impact on the housing costs of those families and individuals who have participated. However, due to the fact that a relatively small percentage of the total market for housing benefits from these programs, these direct initiatives do not serve to lower the cost of housing in general throughout the City.

3. Supply of Serviced Land If current trends relating to housing demand continue, the City will run out of land for residential development by the mid-1980's. Uncertainty about the future supply of land for residential development will drive up the price of land and housing in the metropolitan area. As the major municipality of the Region, the City has the responsibility to ensure that there is an adequate supply of residential land to meet future needs by reviewing policies which have a direct effect on the amount of land consumed, by enacting policies on the staging of residential development, and by developing an annexation policy that will ensure adequate long-term land supplies for orderly growth. The Task Force on Housing Costs has also recommended that the City review its policy on the financing of servicing costs for new areas, with a possible solution being to involve the Province as a source of funding for trunk storm drainage, sanitary sewer, and water transmission facilities.

4. Reviewing Residential Development Standards Through the Task Force, the City has examined various municipal servicing and development standards for residential areas. Such items as the design and standards for major roads, land dedication policies, as well as zoning standards for residential lots were reviewed and recommendations were made to

reduce some standards in order to achieve cost savings in the housing production process.

ROLE OF THE GENERAL PLAN Some of the actions which the City has taken or might take to reduce or stabilize housing costs have been noted above. Where does the General Plan come in? The General Plan is Edmonton's guide to managing future growth within the City. It is a policy document which provides a framework to deal with the many complex planning issues which are the result of rapid urban development. The General Plan sets out a series of goals and objectives which taken together define the overall strategy for the City's future development. These goals and objectives also serve as the basis for the preparation of more detailed Structure or Outline Plans which define in greater detail how individual areas will develop and grow. The General Plan is therefore a document which provides the overall planning context for the City and addresses issues involved in its longer-term development.

HOUSING COSTS AND THE GENERAL PLAN The General Plan's potential impact on housing costs is related to the way in which it influences the future supply of land required for housing.

"...lower lot prices may be one of the most effective means of lowering the cost of housing."

The Task Force on Housing Costs examined numerous factors which influenced the cost of land and ultimately housing costs and concluded that lower lot prices may be one of the most effective means of lowering the cost of housing in Edmonton. While there are many factors which combine to make up the ultimate price of a serviced lot, it goes without saying that adequate supply of land is a major prerequisite. The relationship between the supply of land and its ultimate price is a complicated issue. However, it is generally accepted that the price of lots will rise if there are serious shortages or uncertainties about the availability of land in the future. It is in this sense that the General Plan is important for it influences the cost of housing in the following ways: â&#x20AC;˘ The General Plan identifies the boundaries and capacities of those suburban areas which are to receive development in the future. As part of the review of the General Plan, projections of anticipated population growth and associated residential land requirements are made. The General Plan will identify those suburban areas where additional future growth might be accommodated and indicate how

---

it should be staged. These policies on the location and timing of development, and other General Plan policies, will guide the preparation of detailed Area Structure Plans as well as the Local Policy Plan which coordinates the programs and capital expenditures of all City departments. By facilitating further planning and development in both the public and private sectors, the General Plan will help to ensure that residential development keeps up with demand.

• The General Plan will identify areas within the Inner City where growth and rehabilitation should occur. While it is anticipated that most new residential growth will occur in suburban areas, older residential neighbourhoods will not be exempt from pressure to accommodate some of the growth through redevelopment. Actions to protect the physical and social character of older neighbourhoods have reduced the number of sites available for redevelopment and have bid up the price of Inner City residential land. The General Plan will establish broad policies on the scale and extent of redevelopment which might occur in the Inner City. The challenge for the future will be to provide policy guidance that both enables redevelopment to take place and protects viable neighbourhoods. • The General Plan will assist in defining the City's long-term land requirements. Studies already carried out have indicated that more land than is presently found within the City's borders may be required by means of annexation in order to accommodate expected population increases. The role of the General Plan will be to define the City's land requirements more precisely in terms of the manner and timing of development, in an effort to ensure that there is an adequate supply of land for housing in the future.

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FOR FURTHER INFORMATION This Issue Paper is one of a series of twelve discussion papers which have been prepared on several topics including the Suburbs, Transportation, the Inner City, and Parks and Recreation. These papers are intended primarily for information, although any comments, criticism or suggestions which may arise from these papers are welcomed by the Team. For complete information about the General Plan Review and how you may participate, please refer to A Citizen's Guide To The Edmonton General Plan - Issue Paper No. 1.

44111111111." .

Copies of the Issue Papers are available at the following locations: • Information Desk, Main Floor, City Hall; • Maps and Publications Desk, Planning Department, 7th Floor, City Hall; • Government Information Division, 2nd Floor, Centennial Library; • All City of Edmonton Branch Libraries • All City of Edmonton: Parks and Recreation District Offices; - Neighbourhood Improvement Program (NW) Field Offices; and Social Service Centres. For further information about the contents of the Issue Papers or about the citizen participation program for the General Plan Review, please contact: Ken Johnson, or Greg Barker General Plan Review Team, City of Edmonton Planning Department, 1405 Centennial Building, 10015 - 103 Avenue, Edmonton, T5J OH1 Telephone: 428-3536.

GENERAL PLAN ISSUE PAPERS

1. 2. 3. 4. 5. 6. 7. 8. 9. 10. 11. 12.

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Edmonton General Plan , I

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THE LAND USE BYLAW ISSUE PAPER NO:iN)

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PLANNING FEBRUARY, 1979

"PUTTING-T()GETHER HE LAN US1 BYLAW' EDMONTON

INTRODUCTION The General Plan is the City's official statement of policy regarding the future character and quality of development in Edmonton. It gives direction to where development will take place and the form it will take. However, due to its city- wide perspective and policy nature, the General Plan can only go a certain distance in

prescribing what a piece of land may be used for or what type of development may take place. In order to specify the particular uses and types of buildings that may be developed on a parcel of land, more detailed land use controls are required. The most important of these detailed controls under the Planning Act (1977) is the Land Use Bylaw.

WHAT IS THE LAND USE BYLAW? Under the new Planning Act (1977), adopted by the Provincial Government on April 1, 1978, the Land Use Bylaw is the name given to the land use control system that replaces the Zoning Bylaw and Development Control Resolutions of the previous Planning Act. Although the new act allows the existing Zoning and Development Control Bylaws to remain in effect temporarily, a new Land Use Bylaw for Edmonton must be adopted by April 1, 1980. Similar to the land use controls of the previous Planning Act, the Land Use Bylaw's primary function is: • to regulate the intensity and location of different land uses; • to minimize potential conflicts between incompatible uses; and • to provide minimum standard for the development of healthy attractive living, working, and recreation areas. In fulfilling this role, the Land Use Bylaw must take into account the land use and urban design policies of the General Plan as well as those policies contained in more detailed local area plans.

KEY FEATURES OF THE LAND USE BYLAW Development Permission The Land Use Bylaw requires that property owners apply to the City Planning Department for permission to develop their property. There are two types of districts within the Land Use Bylaw under which development permission is controlled: Zoning Districts and Direct Control Districts. 1.

Zoning Districts

The provisions for Zoning Districts in the new Land Use Bylaw are similar to the provisions of the former Zoning Bylaw legislation. Under zoning, various districts are established which define the particular uses of land within that district and indicate how these uses may be developed. districts are established for different housing types - single detached houses, townhouses, and high-rise apartment buildings - and different commercial or industrial zones are established for retail, wholesaling, and manufacturing activities. Within each district "development standards" are used to regulate how development takes place. Generally, development standards

regulate the physical aspects of development, such as the height and size of buildings, the amount of site area that may be built upon, and requirements for parking or landscaping. These standards help to ensure that developments within a particular district are similar in scale, and that individual developments are compatible with one another.

NIL Traditionally, zoning districts have been based on broad land use

categories such as residential, industrial, commercial or institutional. However, these broad categories alone do not provide a sufficient degree of distinction to adequately control the complex pattern of development in a large modern city like Edmonton. Consequently, sub-categories are usually established on the basis of the physical form of development or the type of economic activity. For example, different residential 2

Under zoning, development permission is usually granted according to whether or not an application conforms to the permitted uses and standards which apply to the district where the development is proposed.

RESIDENTIAL ZONING

DEVELOPMENT STANDARDS

3. Direct Control Districts

Features Traditionally Regulated Through Zoning

Within the Land Use Bylaw,

site density/intensity courtyard height uses bulk design/appearance of building or structure floor area type, number, size, use of signs

provision has been made for Direct Control Districts to provide for a more detailed level of control than is generally possible through zoning. The manner in which the Direct Control Districts will be used has yet to be determined. However, City Council may authorize that the use of land in Direct Control Districts be regulated in any manner it considers necessary to achieve the development objectives of the General Plan or of smaller scale, local area plans.

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Within Direct Control Districts it would not be necessary to specify in advance all the permitted uses as required in zoning districts, and each application would be considered on its individual merits in meeting the particular objectives of a local area plan. For example, a Direct Control District might be applied to a historic area and require that new developments comply with the guidelines of a Local Historic Plan for such considerations as building character and height, finishing materials, and site design. Direct Control Districts offer the possibility of a greater degree of flexibility in regulating development than is possible in Zoning Districts. 3

THE RELATIONSHIP OF THE GENERAL PLAN TO THE LAND USE BYLAW As the City's comprehensive land use policy document, the General Plan provides an important framework for the development of a new Land Use Bylaw. The General Plan will: 1. Provide an indication of the number and type of land use districts required to successfully implement the growth strategy and various land use policies of the General Plan.

The new Land Use Bylaw, through more detailed regulations and maps will provide an important means by which the land use objectives of the General Plan, and other more detailed local area plans, could be implemented.

REQUIREMENTS OF THE NEW LAND USE BYLAW In preparing the new Land Use Bylaw the Planning Department must consider: 2. Provide information for the identification of those areas of the City which have complex development problems and require more sensitive land use control than is generally possible through a standard zoning approach. 3. Provide design policies and guidelines to aid in the establishment of specific development standards for building intensity, private open space, parking requirements, and landscaping. 4

• Land use control changes required by the new Planning Act. • Deficiencies within the present land use control system. • Desirable characteristics and goals for a new Land Use Bylaw. • Implementing the new Land Use Bylaw.

"...an important means by which the land use objectives of the

General Plan could be implemented."

1. Changes Required By the New Planning Act Although the Land Use Bylaw provisions of the new Planning Act allow many of the features of the existing control system to be continued, some important changes are required. The most significant of these is the need to replace the existing Development Control Bylaws and the Land Use Classification Guide with either the Zoning or Direct Control District regulations of the Land Use Bylaw.

When the former Planning Act was introduced in 1963, Development Control was applied to areas where detailed land use studies had not yet been conducted by the City and where the mixture of different uses made it desirable to have detailed control over each development proposal. It was intended that detailed control would be exercised by reviewing each development proposal in light of its merits in meeting the objectives and policies of the General Plan or the more detailed Area Plans. Unfortunately, the kind of detailed land use control objectives and policies required for the exercise of Development Control were not adopted and the benefits of this control system were not fully realized.

2. Deficiencies of the Existing Land Use Control System The present Zoning Bylaw and Development Control Resolution were initially adopted in the early 1960's. Amendments to the Bylaw and Resolution since that time have not fully accounted for the social, economic, and development changes which have taken place over the past two decades. The inadequacy of present regulations is evident in such planning concerns as better design of multiple family housing, standards for energy conservation, or protection of environmentally sensitive areas. New building forms and land uses have emerged which are now regulated by districts and standards which were intended for other uses. Attitudes towards redevelopment in older neighbourhoods have also changed and there is a need to develop more sensitive controls to improve the relationship between new and existing building forms.

3. Goals for a New Land Use Bylaw Everyone affected by the controls placed on land has an intense interest in how the City's land use regulations influence the achievement of their particular objectives. Various "user" groups (residents, land developers, builders, political decision makers, and planners) have different ideas about the kind of land use control bylaws that the City should have. Generally these ideas reflect the following concerns: a) Quality of Environment: People are concerned about the need for land use controls to prevent adverse effects caused by the proximity of conflicting land uses; to establish acceptable standards for development intensity and open space, and to preserve natural features or unique site characteristics.

b) Certainty: There is a need for land use controls to provide advance information on the types of development or redevelopment permitted and the procedures and criteria that will be used in evaluating a development proposal for approval. Land use controls must also provide certainty (in the sense of stability) by protecting residents from unexpected development that would change the character of an area.

"Land use controls should allow for individuality of expression and innovative design."

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c) Flexibility:

Although land controls should provide certainty, they should also provide reasonable flexibility. Land use controls must be flexible so that they can be adapted to meet social, economic, or technological changes. Flexibility is also required to allow for the unique character or geographic features of different areas in the City. Land use controls should also allow for individuality of expression and for innovative design. d) Equity: In seeking to achieve a balance between "certainty", and "flexibility", land use controls must provide fair and reasonable treatment of various private and public interests. An important aspect of fair treatment is the establishment of adequate opportunities for public consultation and the appeal of administrative decisions.

Since the views of the various user groups often conflict with one another there is a need to establish goals for the new Land Use Bylaw which strike an acceptable balance between differing ideals.

"...must provide fair and reasonable treatment of private and public interests."

4. Implementation of a New Land Use Bylaw A major issue in implementing a new Land Use Bylaw is the number of changes that will be made to the existing control system and how these changes will be introduced. In view of the broad impact of land use regulations, it is important that new controls in the Land Use Bylaw which involve substantial changes to the development of existing districts should not be applied until a land use study involving public input has been prepared.

THE PROCESS FOR PREPARING A NEW LAND USE BYLAW A special Project Team has been established within the Planning Department to conduct a comprehensive review of the existing land use control system and prepare the City's new Land Use Bylaw. The Land Use Bylaw Project is being undertaken in three major stages:

Planning Department

City Council

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1. the identification of areas of deficiency in the present land use control system and the establishment of goals and objectives to guide the preparation of a new Land Use Bylaw. 2. the preparation of a draft Land Use Bylaw and covering report that explains the key features of the Bylaw, the areas of change from the present system, and the proposed implementation strategy.

Civic Departments PREPARING THE LAND USE BYLAW

The Public

3. the preparation of a final legal Bylaw for formal public hearing and adoption by City Council. The Land Use Bylaw Project is being closely co-ordinated with the General Plan Review because of the important interrelationship of these two projects.

It is intended that a draft Land Use Bylaw be completed in the spring of 1979 and that a final Bylaw be submitted to City Council in the fall of 1979. This schedule will provide a period of approximately six months in which to make any adjustments to the Land Use Bylaw, prior to the April 1, 1980 deadline for adopting the Bylaw. The public is encouraged to become involved throughout the process, and submit their comments on deficiencies within the existing Bylaw and on the desired features of a new Land Use Bylaw.

HOW YOU MAY PARTICIPATE The Land Use Bylaw and You During the various stages of the Land Use Bylaw Project, members of the general public will be invited to obtain copies of Background Papers or Draft Bylaws and submit their comments and concerns to the Planning Department. The various papers will be announced by means of press releases and newspaper advertisements. The formal public hearing for adoption of the Land Use Bylaw will also provide an opportunity for citizens to make official presentation of their views to City Council.

At this time, the Planning Department is interested in obtaining your views on deficiencies within the present land use control system and on desirable characteristics for a new Land Use Bylaw. This paper has been prepared to provide you with a brief overview of the issues involved in the preparation of the Bylaw. More detailed information on the Planning Department's analysis of land use control issues and suggested goals for a new Land Use Bylaw are provided in a background paper entitled "A New Land Use Bylaw for Edmonton".

Copies of this Background Paper may be obtained by contacting: Mr. Geoff Bocian Land Use Bylaw Project City of Edmonton Planning Department 7th Floor, City Hall 1 Sir Winston Churchill Square Edmonton, Alberta Phone: 428-3450 Written comments or general questions on the Land Use Bylaw Background Paper or on this Issue Paper should also be directed to the above person.

"The public is encouraged to become involved..."

The General Plan and You As noted earlier, the General Plan provides the basic framework for the development and application of the new Land Use Bylaw. It is important that policies within the General Plan reflect our goals for the future of the City at the neighbourhood level and for the City generally. Your assistance is requested both in the development of a new General Plan, and in the preparation of the new Land Use Bylaw. Over the next few months there will be several opportunities for the public to participate in the preparation of the General Plan. Information about the General Plan Review and the citizen participation program is provided in A Citizen's Guide To The Edmonton General Plan - Issue Paper No. 1. The Planning Department has also produced a series of Issue Papers for public information and discussion. This paper on the Land Use Bylaw is part of that series. The topics of other papers include: The Suburbs, The Inner City, The Downtown, Transportation, and Parks and Recreation.

GENERAL PLAN ISSUE PAPERS 1. 2. 3. 4. 5. 6. 7. 8. 9. 10. 11. 12.

einiOnton . . . planning for our future

Edmonton

eral Plan

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PLANNING FEBRUARY 1979

Edmonton General Plan A Citizen's Preview Table of Contents Page Introduction Process for Preparing the General Plan What is the General Plan and How Does it Affect the Citizens of Edmonton? Purpose of the Edmonton General Plan Assumptions Influencing the Preparation of the General Plan A Choice of Futures Why it is Important that Choices be Made The Future Planning Environment The Projected Future Under Present Planning Policy Towards Resolving the Issues: Trade-Offs and Priorities Levels of Service Inner City Traffic Congestion Quality of Suburban Development Insufficient Residential Land Insufficient Industrial Land Future Options for Accommodating Edmonton's Growth The Trend Growth Option The Compact Growth Option The Concentrated Growth Option A Comparison of Growth Options Preliminary Evaluation of Growth Options General Conclusions Urban Development Policies The Downtown Inner City Neighbourhoods The Suburbs Transportation Urban Design Parks and Recreation Citizen Participation Economic Development Implementing and Monitoring the Plan Implementation Measures The Monitoring Process Citizen Involvement in Implementation Where Do We Go From Here? Upcoming Citizen Participation Process For Further Information

1 2 4 5 6 6 9 10 10 11 12 13 13 14 15 15 16 21 26 28 29 29 29 29 30 30 30 31 31 31 32 33

Introduction .

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This discussion paper is a "preview" Process for Preparing the For a detailed explanation of the of the Edmonton General Plan. Work Citizen Participation Process, refer to General Plan on the General Plan is sufficiently far A Citizen's Guide to the Edmonton advanced that citizens can now obtain The accompanying chart indicates the General Plan — Issue Paper No. 1, key phases and times in the General published by the Planning a fairly clear picture of what the Plan preparation process. Emphasis is Department in January, 1979. central theme of the Plan will be and upon the reports which will be the kinds of issues it will address. produced, and the opportunities The paper is a "preview" in the sense which citizens will have for input. that we wish to emphasize that nothing is final about the Plan. The Plan will not be completed until citizens have had a chance to respond CITIZEN PARTICIPATION PROCESS to the contents of this Preview, and to EDMONTON GENERAL PLAN provide input into the preparation of CMZEN CMZEN the Plan. PARTICIPATION PARTICIPATION PHASES PHASE I IDENTIFICATION OF ISSUES

ACTIVES

PAPERS

II NEIGHBOURHOOD PLANNING CONFERENCE IMID • JUNE 19781

NEIGHBOURHOOD PLANNING CONFERENCE FINDINGS REVIEWED

NOV '78 DEC

ISSUE PAPERS (FIRST SERIES) MADE PUBLIC

1 A m 70

ISSUE PAPERS (SECOND SERIES) MADE PUBLIC "CITIZENS' PREVIEW"MADE PUBLIC

INITIAL OPEN HOUSE

PHASE II EVALUATION OF ALTERNATIVES

1 CITIZENS WORKSHOPS

SUBMISSION OF BRIEFS AT CITIZENS' WORKSHOPS

MAR "REPORT BACK" PUBLIC PARTICIPATION PAPER MADE PUBLIC

PHASE III

CITY COUNCIL (FIRST READING)

FEB

APR

FIRST DRAFT OF GENERAL PLAN MADE PUBLIC

MAY

RECOMMENDATIONS FINAL PHASE PUBLIC INFORMATION PROCESS

PUBLIC HEARING

SUBMISSION OF BRIEFS AT PUBLIC HEARING

JUNE JULY 1

IMP

Three main opportunities exist for the citizens of Edmonton to provide input to the General Plan: 1. Workshops. Citizens' workshops

will be held in March and April', 1979, and will centre around this Preview. The purpose of the workshops will be to involve citizens in developing and evaluating alternatives for land use issues in Edmonton. The results of the workshops will be published later in the spring as a "Report Back" to the citizens.

2. Public Hearings. The final Plan will 3. Written Briefs. Citizens do not need to attend the workshops or public be submitted to City Council in late spring of 1979. Then, during the hearings to express their opinions. summer, City Council will schedule Written briefs or letters can be forwarded to the Planning public hearings on the Plan, which is when any citizen who wishes to Department at any time. can make a presentation or submit a written brief to Council.

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What is the General Plan and Although it sounds rather abstract, the how does it Affect the Citizens General Plan in fact will affect the life of every Edmontonian in some way. If of Edmonton? you are concerned about where and

The General Plan is a long range planning document which sets out the City's future growth strategy. This means that the General Plan will deal with such issues as: • whether or not new housing units should be built in existing developed areas, and if so, where; • whether or not office development should be encouraged in areas outside of the Downtown, or if we should continue to concentrate in the Downtown; • whether or not new residential neighbourhoods should be of similar density to present ones or of higher or lower density.

how Edmonton will grow in the next fifteen years and how it may affect you, then you should read this

Preview and let us know what you think about the issues and choices presented. In the next few months, Edmontonians will be given the opportunity to discuss alternate ways that the City could grow in the future. The process of evaluating and selecting from among these alternatives is always a difficult one. None of the alternatives is outstanding in all respects. It boils down to a question of priorities and trade-offs, similar to the way individuals plan their lives — as an example, it is always difficult to

decide whether to spend money on a vacation or a new car; the dilemma is similar, if on a grander scale, when we examine future ways that Edmonton could grow. The discussion and choices will not be easy, and this is why we need the assistance of Edmonton's citizens in helping to determine what trade-offs we should be making, and which are the most important priorities for the future. In the 13 years since 1965, the City of Edmonton has grown by at least as much as in the previous 18 year post war boom period. Growth in the next 15 years is the central issue in the General Plan. How, and where, do we accommodate it?

Urban Development: Past, Present and Future City Growth

Legend Year 1902

1965

1924

1978

1947

Purpose of the Edmonton General Plan For those who are interested in the legal aspects of the General Plan, the Plan is provided for under the authority of the Alberta Planning Act, 1977 which states: "A general municipal plan shall (a) describe (i) the land uses proposed for the municipality, and (ii) the manner of and the sequence proposed for future development in the municipality; (b) designate the areas of the municipality that would, in the opinion of the council, be suitable for an Area Structure Plan or an Area Redevelopment Plan or both; (c) contain such other matters as the council considers necessary. (Section 61) On this basis, the Edmonton General Plan's focus is upon designating land uses which will show where and how growth is to be accommodated in the City of Edmonton in the next fifteen years. It also includes policies outlining how residential, commercial, and industrial development will take place; and policies guiding the provision of municipal services, ranging from transportation to utilities, social services, and parks.

The General Plan will deal with issues relating to . . .

. . . where we live

. . . where we work

. . . and how we move about the city

Assumptions Influencing the Preparation of the General Plan •••

4. A number of assumptions have been General Plan, this will be achieved made by the Planning Department as through using the recently to the manner in which the new introduced "Local Policy Plan" as General Plan should be prepared. the primary implementing tool. These assumptions are outlined Edmonton is exploring new below. Subject to the reaction approaches to coordinating the received from the public, the Planning implementation of departmental Department will be preparing the new plans and programs and is now General Plan according to the pursuing an approach known as perspective outlined in the following "corporate planning". The local points. policy plan is the means through which corporate planning takes 1. Ideal Vision of the City. A General place in Edmonton, and basically Plan should reflect the goals and sets out the guidelines (drawn from objectives of the community for plans such as the General Plan) managing and accommodating which will direct preparation of the growth. It should provide the City's annual budget each year. "ideal" towards which the community wishes to strive. 4. Flexibility. A delicate balance must be achieved, when preparing a 2. Practicality. At the same time, a General Plan, between flexibility General Plan has to be rooted in and the need to be specific. reality. Ways of balancing trade-offs Flexibility is necessary in order to with idealistic statements must be provide room for different provided. Priorities must be responses to unforeseen trends, selected: not all of the objectives of and to allow room for innovation. the community can be emphasized The new General Plan will at any given time. emphasize this criterion. 3. Implementability. A General Plan At the same time, however, it is has to be implementable and generally agreed that the 1979 Plan applied. The objectives for must be more specific than the last managing growth, and the policies one. It must direct, as precisely as which reflect the balancing of possible, where growth is to go, and objectives, have to be linked to it should set benchmarks by which practical programs which will trends can be monitored to ensure that the intent of the Plan is determine the accuracy of the Plan. carried out. In the Edmonton

5. Citizen Participation and Citizen Responsibilities. Over the last ten years, it has become common practice to include citizen participation as an essential ingredient in planning processes. This has been justified on the grounds that citizen input is necessary to help identify issues and evaluate solutions. However, citizen participation in the planning process is also necessary for another reason — if the General Plan is to be successfully implemented, the responsibility for doing so will be that not only of the City administration, but of citizens, businesses, and private associations. Therefore, these groups must be involved in the preparation of the Plan, if they are to become committed to its implementation. Moreover, the City will be relying on citizens for the successful implementation of the General Plan. Given these factors, the General Plan process outlined earlier in this paper includes several points at which citizens may influence the content and direction of the Plan. Additional avenues for citizen involvement will be created if necessary.

A Choice of Futures

With the foregoing assumptions acting as a guide, the plan preparation process for the General Plan has been underway, with the Planning Department examining the City's long range growth prospects, and developing alternatives for the accommodation of this growth. It is always difficult to grasp the implications of various growth alternatives; that is why this Preview has been prepared. It attempts to help citizens understand more easily what the real implications of the choices available are, and why it is important that we make a choice.

Why it is important that choices be made

If we continue to accommodate our growth in this manner, what will the results be? This question will be addressed at a later point in this Preview. However, it should be realized that one option that we still have and one that has certain advantages is to continue to grow in the present fashion, and make very little radical change to our planning guidelines.

The future planning environment Before exploring future City growth options, it should be clear just what kind of an environment is being forecast for the future, and how much growth the City of Edmonton can be expected to accommodate.

Currently Edmonton is accommodating growth according to choices 1. Provincial perspective. Alberta has that were made ten, even fifteen, years been in a "boom" economic ago. These decisions basically reposition over the past few years. volved around the choice to Based on economic forecasting and concentrate jobs in the downtown; to interpretation of trends relating to build our suburban residential areas the development of Alberta's major according to the "neighbourhood" Oil Sands deposits (see map), there principle, that is, in as orderly a seems to be no reason to doubt that fashion as possible and having an the Province will continue to be in emphasis on single family housing this strong economic position for units at relatively low density some years to come. It has become an compared to European or even Eastern attractive place for migrants â&#x20AC;&#x201D; both Canadian cities; the choice to include nationally and internationally. The multiple family development in the Edmonton region receives from suburban areas; and the choice to one-third to one-half of all migrants concentrate apartment development to the Province each year. Even in a few older neighbourhoods close though the Province is attempting to the central area of the City. to decentralize some of the growth 6

impetus away from the cities of Calgary and Edmonton, it seems unlikely that very much reduction will be made to this growth. Another policy of the Province â&#x20AC;&#x201D; to diversify the economy â&#x20AC;&#x201D; can probably best be achieved by directing new industries to centres where an industrial base already exists (such as Edmonton), in order to develop the necessary linkages among industries. It is therefore expected that Edmonton will continue to grow at a steady rate.

Alberta's Major Oil Sands Deposits

Certainly, growth is going to be attracted to the Edmonton subregion and therefore has to be accommodated. In order to plan the City's future growth, some assumptions must be made about the proportion of growth which will come to the City of Edmonton. These assumptions are: (a) That the City can better accommodate the growth coming to the Edmonton sub-region

than the smaller towns in the region, and should accommo-

date whatever growth is directed towards it. (b) That, based on previous population projections, Edmonton will have to accommodate in the area of 700,000 people by the year 2000. This implies that the City will continue to be the main growth centre of the Region.

The Edmonton Sub-Region

Edmonton Sub-Region MIP City of Edmonton

1000 900 800

Edmonton Sub-Region

700 . 600 500 Population (in thousands)

2. Regional perspective. Given the foregoing conclusions about the impact of Provincial policy, the forecasts are that the population of the Edmonton Metropolitan region (referred to as the Edmonton sub-region) will increase by twothirds in the next 25 years, implying an annual growth rate in population of 2 percent, gradually declining to 1.5 percent. By 2001, the sub-region (as depicted in the map below) will have roughly one million people. It now has about 600,000 people. The General Plan that we are talking about in this Preview is for the City of Edmontonâ&#x20AC;&#x201D; not the entire sub-region. In the City we currently have three-quarters of the metropolitan region population, and in recent years two-thirds to three-quarters of the population increase in the sub-region has been accommodated by Edmonton. If the proposals of the growth study recently completed by the Edmonton Regional Planning Commission were to be implemented successfully, Edmonton would accommodate only 50 to 60 percent of the sub-region's annual population increases. These forecasts lead us to ask such questions as: will the City continue to be the main growth centre of the region? Certainly our central area will be the focus of the regional identity; but whether we continue to accommodate two-thirds of the region's population increase depends on two things: (a) whether or not the City expands its boundaries to include new residential and industrial land when it becomes necessary. If the Province does not support the City's bid to expand its boundaries, we will soon run out of land and will not be able to accommodate the projected growth. (b) whether or not suburban towns in the region can afford to continue to grow. If suburban towns begin to find the financial costs of residential growth too severe, then Edmonton will be required to accommodate more than two-thirds of the annual population increase.

400 300 . 200

City of Edmonton

100

1951 '56 '61 '66 '71 '76 '81 '86 '91 '96 2001 Year

Population Trends and Forecasts

3. National metropolitan perspective. A number of trends which have been occurring in metropolitan areas across the nation will influence the ways in which Edmonton will accommodate its future growth. These trends should be explained, since they comprise part of the backdrop against which the future picture of Edmonton is painted later on in this Preview. (a) Pressure to preserve and conserve natural resources. International trends in resource conservation are influencing metropolitan planning attitudes towards land use, and are encouraging the conservation of agricultural land, and the reduction of energy consumption. This has led to pressure and justification to increase densities in many cities across the country. (b) Continued support for an orderly suburban land development process. Planning in Canada is characterized by strong emphasis on an orderly suburban land development process; that is, rather than allowing leapfrogging of development which leaves undeveloped parcels of land scattered on the urban fringe, planning authorities across the country have been adamant that development should occur in a continuous fashion. This philosophy has been criticized by the land development

industry, who have argued that it restricts land supply and pushes land prices up. United States data shows that any other course of action would mean greater costs to service the land which the consumer would still pay in the long run, as well as greater costs in providing other services such as transit, which means higher taxes. (c) Support for an Inner City neighbourhood revitalization process. The 1970's have seen a shift in attitude towards older neighbourhoods, resulting in a slowdown in approvals for redevelopment and an emphasis on planned revitalization of Inner City neighbourhoods. This trend has been tied to the recognition of the value of older neighbourhoods: for their housing stock; for the investment in urban services which exists in them; for their historical value; for aesthetics; and for the human communities which exist in them. (d) Concern with the soundness of municipal finances. The prospect of a city "going broke" — as has happened in the United States to the cities of New York and Cleveland — is not a pleasant one. The City of Edmonton can in no way be compared with these two American cities. Nevertheless, across the nation as a whole, cities are becoming increasingly

concerned about the soundness of their financial base. This is especially true in cities like Edmonton, where an increasing proportion of metropolitan population growth is occurring outside the City's boundaries, but still continuing to use municipal services like roads and parks. The effect of the trend has been to increase the degree of importance placed upon ensuring that land use plans do not decrease the soundness of the municipal financial base. (e) Concern with transportation. Transportation congestion — and the costs of alleviating it — have been a constant source of attention for many years. In many metropolitan areas in Canada, it is still considered the number one problem worthy of analysis. One of the significant trends occurring in other cities is the shift towards a public transit transportation strategy — even in cities like Ottawa and Vancouver, which traditionally have not enjoyed a high level of transit service. These five trends at the national level will all influence the future forecasts for Edmonton.

3. Traffic congestion. The forecasts indicate that the number of automobiles on Edmonton roads The original question remains: why will increase dramatically between the citizens of Edmonton should now and 1991, even with an get involved in making choices for the increase in transit ridership. The future about how and where the City impact will be a great increase in grows. Basically, the necessity for the average time spent on the making choices stems from the kind of "journey-to-work" of the average future that is forecast if we do not Edmonton resident — including change our land use patterns, and residents of suburban towns who merely continue growing as we are work in the central area of the City. now. The following are some of the 4. A questioning of the quality of issues which we forecast will create suburban development. Suburban increasing problems if Edmonton development has been the continues on its present course. subject of considerable debate 1. Costly facilities and services. If in Edmonton over the past few Edmonton's Suburbs continue deyears, both as to quantity (density) veloping at relatively low density, and quality (design). Although the provision of services (such as some changes are being made in the schools, parks, and transit service) design of Suburbs, under our will continue to be very costly on a current policies it is not likely that per capita basis. the future will see any significant 2. Uncertain future for older change — either decrease or neighbourhoods. Uncertainty and a increase — in the densities being loss in stability of older neighbourallowed in the Suburbs. hoods are influenced by two factors 5. Insufficient residential land. Bein particular: the lack of a firm cause of forecasts of continued high policy as to how much growth the rates of household formation (and older neighbourhoods should retherefore housing demand), the City ceive, or where it should go; and the will continue to absorb large impact of Suburb-toamounts of suburban land for Downtown through-traffic. residential purposes. Forecasts

The projected future under present planning policy

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suggest that by the mid-1980's we will be running out of land for planning and servicing. 6. Insufficient industrial land. The forecasts indicate that, due in part to insufficient industrial land, the City will accommodate less of the region's industrial land demand than it will housing demand. Consequently, it is expected that there will be a gradual shift in the City's tax base towards residential assessment, with proportionately less industrial land to bear the costs of providing municipal services. Because of these issues, the General Plan is exploring alternative "land use" growth options for the City. These alternatives imply redirecting our traditional patterns of city growth and will affect factors such as the density of our housing developments; the location of new housing — in the Suburbs or the Inner City; and the location of employment areas. These proposed changes raise questions of the trade-offs which will have to be made in order to cope with each of the issues outlined above. A more detailed discussion of these trade-offs will assist citizens in reviewing the growth alternatives being explored by the General Plan.

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Towards Resolving the Issues: Trade-Offs and Priorities

1111111111 1111111

The resolution of issues is not an easy task. Choices will undoubtedly need to be made. Some of these choices which citizens will be facing in the General Plan process are outlined in the pages which follow.

Levels of Service The Mayor's Neighbourhood Planning Conference raised the question of the amount and quality of services in the Suburbs as well as in the Inner City. Our projections indicate that based on the City's present pattern of growth, the level of services which can be provided will continue to decline, and therefore we can expect that this will continue to be an issue for citizens. Some of the trade-offs which will be involved in the resolution of this problem are as follows: 1. In order to obtain less costly and higher quality services in the Suburbs (i.e. better quality transit service, less delay in the provision of schools, and better quality parks), citizens may have to be prepared to live in higher density development, in order that the tax and operating revenues required to provide the services can be generated. Higher density development does not mean that all people will have to live in row housing or apartments, but rather, alternatives such as more compact single family housing on smaller lots, zero lot line housing (only one side yard), use of some ground-oriented 10

multiples (row housing which has access to either separate or communal open space), and narrower side streets. It is believed that some of the criticisms levelled towards higher density development over the last few years can be dealt with through improved design. Nevertheless, the situation remains that densities in the Suburbs may have to be increased if service levels are to be improved. 2. An alternate strategy to aid in the achievement of services more quickly after development has occurred would be stricter control of the development industry and the timing of development. If the City knew more closely when and where building was going to occur, it would be able to plan for services more precisely. The trade-off, though, is that such control might reduce competition in the housing market and push housing prices up. It should be recognized that this strategy would not lower the cost of providing services, but would improve the timing of providing such services as parks and schools. 3. A third alternative to the question of costly services is the maintenance of our current densities of suburban land development, and the recognition that services are going to be costly. The trade-off will then be to either pay for the services through higher taxes, or to accept a reduced level of service.

Inner City The central issue in the Inner City is the amount of redevelopment which will be allowed or encouraged in the existing developed areas of the City. Trade-offs which have to be faced include: 1. If the choice is made to preserve Inner City communities, and allocate minimum amounts of new development to the existing developed areas of the City, then the implication is that land must be available for new housing development in the Suburbs. This means: (a) higher rates of agricultural land absorption, (b) a greater likelihood that suburban residents will use automobiles rather than transit because of the spread-out nature of development and the difficulty of providing a high level of transit service. This will likely yield an increased amount of traffic on Inner City roads, which will result in pressures to widen roads or otherwise further disrupt and lessen the stability of Inner City communities, (c) the stability of Inner City communities may be threatened by the gradual deterioration of housing if a certain amount of redevelopment does not occur in them.

Trade-offs (b) and (c) suggest that, in the long run, the chances of preserving the Inner City communities could be better if a combined approach of redevelopment and rehabilitation is taken by the City. 2. If the choice is made to allow a high level of redevelopment in older neighbourhoods, the trade-off which will be faced is how to bring this about with minimum impact on the community. In order that land prices not be pushed up too high (and thus negate the possibility of low density redevelopment), it would not be desirable to channel redevelopment into only a few selected Inner City areas. It would be more desirable to allow redevelopment in many of these neighbourhoods. The trade-off, therefore, is that in order to achieve long run stability, some "planned" redevelopment will be required; it will be necessary to appreciate that redevelopment can be beneficial and will not necessarily spell "doom" for older neighbourhoods.

Question #1 deals with land use â&#x20AC;&#x201D; and is therefore being examined in the General Plan process. Question #2 deals with transportation, and is the subject of studies underway in the transportation planning process. Although the two planning processes are separate, the choices are closely related to each other. For example, it would be a mistake for the City to develop a transit oriented investment strategy if the General Plan continues to stress suburban residential development at low densities, contains no provision for increased population densities in areas around Light Rail Transit (LRT) stations, nor provisions for corridor development. Citizens must realize that the choice of a particular type of land use pattern depends upon the transportation policies adopted by the City. Similarly, the choice of a particular type of transportation system depends upon the land use policies adopted by the City. Very simply, the relationships and trade-offs between transportation and land use in Edmonton are as follows: Traffic Congestion 1. A continuation of our present The central issues are: patterns of suburban land use 1. What improvements can be made in development implies less potential the future level of traffic congestion opportunity for an efficient public through changes in our land use transit system including Light Rail pattern? Transit, as well as increasing traffic 2. Should the City be emphasizing congestion from automobiles. roadway or transit improvements in an attempt to reduce congestion?

2. A shift in our present pattern of land development toward lower suburban densities would make public transit even less efficient and imply greater movement towards an automobile oriented strategy. 3. A shift towards more compact development, with higher densities in the built-up area of the City and in the Suburbs, would be more consistent with a move towards a public transit emphasis, through increasing potential ridership and making automobile dependence unnecessary. If densities are increased in areas adjacent to transit corridors, the potential viability for LRT is also increased. 4. A continuation of our pattern of concentrating jobs in the Downtown is beneficial from a public transit system point of view (efficient to serve), but costly from a congestion point of view (automobiles and buses focussed on one area). 5. A shift towards decentralization of jobs would mean that the demand to travel Downtown would be reduced, traffic congestion would be reduced, and roads throughout the City would be better used. However, by increasing traffic away from the central area, we might reduce the potential development of an effective public transit system.

Quality of Suburban Development

What is most important to Edmontonians now in the way our Suburbs develop? Some of the The issue that has been raised in terms trade-offs are listed below: of suburban development relates primarily to the perceived quality of our 1. If privacy and open space are the most important aspects of quality, Suburbs by the citizens. The critical then we should continue on our question is how to define a high-quality present pattern (with perhaps even environment. Let us imagine for a lower densities), but the trade-off will minute what most people seem to like be reduced or very expensive in their environment: they like the services available in the Suburbs. It benefits of an urban environment will likely also mean continued (interesting and exciting environment, reliance on the automobile in order to entertainment and leisure travel to the urban amenities, which opportunities, and a sense of character) will aid in changing the character of without the costs (noise, pollution, lack Downtown. If densities are lowered of safety); and they like the benefits of a to less than at present, the reduced suburban environment (open space, level of services will be accompanied fresh air, privacy, greenness and safety) by more costly land and housing. without the costs (long travelling distances and boring environment). 2. If by quality of environment we are placing greater emphasis on accesIs it possible to have this "perfect" sibility to urban amenities, then we combination of town and country? Or should examine options for more will we always be required to make compact development â&#x20AC;&#x201D; higher trade-offs? Later on in this Preview, densities and the revitalization of the when we discuss alternate growth potential of the many already options, we will get back to this established areas in the City. This question. option would involve a trade-off with Over the past twenty years, our Suburbs some of the other aspects of suburban in Edmonton have developed because development previously pointed out people have placed greater priority on â&#x20AC;&#x201D; such as a reduction in privacy and having privacy, open space, fresh air open space. and safety rather than on the urban 3. A third area of trade-off is the amenities offered by our older question of design guidelines. It communities: a sense of character and should be possible for densities to history, mature trees, and convenient remain the same or become slightly access to entertainment opportunities.

higher without any noticeable loss of appearance through the application of sophisticated urban design guidelines. However, improved design guidelines could mean a slowdown in the land development process, which could be costly and result in higher house prices. 4. Another trade-off involved in improving design guidelines is the implication that there would be greater involvement of citizens in the design process itself. This could also lead to a more time-consuming process and higher costs in the long run. 5. Another trade-off involved in the whole question of suburban development is the question of mixing housing of different income levels within one neighbourhood. This policy, which has been implemented in a number of Edmonton's suburban areas, has been criticized by citizens on the grounds that it creates conflict and that a potential circle of contacts and friends is reduced. The alternative is to go back to segregating housing of different income levels, with the resulting implications for restricting choice to lower income households. These are the trade-offs we face when looking at the way our Suburbs develop.

Insufficient Residential Land

Insufficient Industrial Land

If our Suburbs continue to develop in their present manner, we will be short of land by the mid-1980's. Our choices are more limited to resolve this issue. Basically, Edmontonians have little choice but to continue to expand in response to whatever growth comes to Edmonton. If growth is not centralized in the City, it will take place in other communities in the sub-region where the City of Edmonton will have no control over it. For example, growth in the Edmonton sub-region might be dispersed in such a way that it could end up placing significant demands on the City's transportation network in all directions. At least if it is within the city limits, we can stage growth so that the transportation impacts can be coordinated with investment in transportation improvements. This same argument also holds for such services as health and social services. The choice is, therefore, not the amount of sub-regional growth which the City is willing to accommodate, but rather where it will place the growth that it must accommodate; and at what rate we should expand into the Suburbs. If we wish to slow down the rate at which we are expanding into the Suburbs, then the trade-offs are: 1. Place more development in existing areas of the City, including; (a) older neighbourhoods (b) under-utilized lands â&#x20AC;&#x201D; railway yards, old industrial areas (c) land used for other purposes, such as the University of Alberta Farm and Griesbach. 2. Increase the density of suburban development. Which is of higher priority: preserving our agricultural land on the urban fringe, or having open space in the central areas of Edmonton? Preserving our agricultural lands, or retaining neighbourhoods of low density single family units?

The last issue where significant trade-offs are involved is the question of the amount of industrial land development which the City should be aiming for and whether we should be actively expanding our industrial land inventory and encouraging economic growth. On one hand, industrial land is required to provide a tax base to pay for the costs of providing municipal services. The forecasts are that the amount of industrial land in the City will be declining relative to residential land; therefore, additional industrial land is required. On the other hand, expanding our industrial land inventory may act as a further incentive to growth. If we wish to slow down our population growth rate in the City, perhaps we should curtail the expansion of our industrial land inventory.

The trade-off, then, is the need for an adequate tax base to finance residential development, versus the degree to which we wish to deliberately promote growth. The previous pages have outlined some of the trade-offs which citizens will have to face in dealing with the question of the growth of the City. The General Plan Team has concluded that the City should remain the central dominant focus of the Edmonton region, and that it is desirable to promote an economic development strategy to continue to ensure a healthy economic base. The General Plan Team has also taken the position that it is desirable for the boundaries of Edmonton to continue to expand in order to ensure that land is available for both residential and industrial development over the long term. Given these conclusions, the General Plan will recommend a growth strategy from the point of view of resolving the issues outlined above.

Future Options for Accommodating Edmonton's Growth

Previous sections have outlined some of the trade-offs confronting citizens as we go about trying to resolve some of our most pressing issues. As a means of addressing these trade-offs or placing them into the context of the City as a whole, three broad growth options have been identified for examination in the General Plan Project. These three options could be described as following along a continuum which begins with a sprawling type of growth at one end and graduates to greater and greater degrees of concentration of growth at the other. This continuum, then, includes what has been labelled for discussion purposes as the "trend", "compact", and "concentrated" options for directing the future growth of the City. The following pages provide a brief statement of intent for each of these options and illustrate them conceptually. The Trend Growth Option The trend growth option represents a continuation of the City's present pattern of growth and is characterized by a low density sprawl-like form of suburban residential development and a concentration of employment in the Downtown area. The main objectives of the trend option are the minimization of future change, and the maximization of choice. Some of the advantages of the City continuing to follow this growth option include low density development which maximizes lot sizes and thereby, private open space, and a broad choice of housing. However, 14

there are also definite disadvantages. For example, the increasing separation of places to live and places to work has resulted in increasing demands on the City's transportation network. The trend option projects what the future will be like if we do not change our policies. It thus provides a means of

comparing the effects of some of the policy changes proposed in other options. In addition, those elements of the trend growth option which are seen as desirable can be identified and opportunities for including them in other growth options can be examined.

Trend

Centralization of Office Space Downtown

Limited Inner City Redevelopment Close to Downtown

Low Density Suburban Development

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The Compact Growth Option The intent of the compact growth option is to use the City's urban land resources more efficiently, while at the same time maintaining, to as great an extent as possible, the type of living environment which will meet the present needs and expectations of Edmontonians. In other words, through moderate increases in densities in the Suburbs and the Inner City and through some decentralization of office space from the Downtown to other areas of the City, services such as roadways, transit, parks, and schools can be provided more economically and thereby, result in the more efficient use of our urban land resources. Under this option, it is expected that the quality and timing of the services available to Edmontonians will be improved and yet, the aesthetic quality of their living environment will not undergo a dramatic change. In summary, this growth option attempts to address the problems associated with the City's present pattern of growth while at the same time, maintaining some of the desirable elements of it.

Compact

Moderate Decentralization of Office Space LRT Stations

Moderate Increase in Inner City Redevelopment Close to Downtown

1104a__ Moderate Increase in Suburban Densities

Concentrated

Substantial Decentralization of Office Space Industrial Downtown Areas

Substantial Increase in Inner City Redevelopment

The Concentrated Growth Option The primary objective of this option is to concentrate a majority of future regional growth within Edmonton's boundaries through allowing a higher level of density throughout the City. In addition to increasing densities in the City, this growth option emphasizes significant decentralization of office employment from the central area. The main objectives behind this growth option are: the creation of an energy-efficient land use pattern, in the face of projected increases in energy costs; the creation of a land use pattern which conserves agricultural land; and the concentration of as much regional growth as possible within Edmonton's boundaries. Under this option, Edmonton would continue to accommodate its present share of the Region's growth (approximately 70 percent), even though there is the possibility that over the next two decades, the City will be faced with a critical shortage of land. The rationale which makes this growth option a desirable one relates to the control which this option would give to the City in terms of future growth in the

Industrial Areas

Downtown

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Shopping Centers Close to Downtown

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Substantial Increase in Suburban Densities

Ag4,01A&Ast, Edmonton Region. With the majority of this growth occurring within the City boundaries, the City can ensure that adequate roadways and other necessary services are provided. If this growth occurred outside the City, Edmonton would still incur the major costs of providing regional level recreation and transportation facilities. The difference would be that the tax revenues required to provide an improved level of services would not be available. As a result of this situation, City tax rates would likely have to be increased. In addition, the City would find it difficult to plan the provision of services, since it would have no control over the magnitude or direction of growth.

II I

The evaluation phase of the planning process will identify further advantages and disadvantages of this growth option. For example, one advantage might be the more economic provision of services such as transit and schools and a potential disadvantage is the more crowded conditions associated with the type of living environment created. The evaluation of this option will also assist us in identifying the implications of the City not being able to annex sufficient additional land, while at the same time, being expected to serve a high proportion of the Edmonton Region's population and employment needs.

A Comparison of Growth Options

Principal among these four variables are the way the Inner City is dealt with, and The table below describes the principal the question of office location. The land use elements associated with these other two components — suburban densities and staging — relate to the three growth options and outlines the manner of developing the Suburbs. differences among them. The options Although there are significant vary according to four main conceptual differences among the characteristics: growth options with respect to • the degree to which office space is suburban development, in practical decentralized terms the differences would not be felt • the amount of Inner City for a number of years, except in a few redevelopment small areas. This is due to the extent of • suburban densities commitment that the City has already • staging of development

made in approving suburban residential plans. Thus, until new growth areas are submitted for approval (most of which would be outside the existing City boundary), the differing suburban residential policies of the three growth options could not be applied. Consequently, the questions of immediate significance to the General Plan are how much growth the Inner City should accommodate, and how much office decentralization should take place.

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A Comparison of Growth Options Characteristics Growth Options Office Decentralization

Inner City Redevelopment

Limited increase. The Downtown would remain as the primary employment centre for the City as a whole.

Limited increase. Redevelopment would occur primarily in those Inner City communities where unused development capacity exists and other areas where redevelopment has already been planned for (e.g. Northeast LRT stations) or is likely to to be planned for (e.g. South LRT Corridor).

Moderate increase. The LRT stations, some of the City's commercial strips and the City's industrial areas would take an increasing amount of office space development.

Moderate increase. Redevelopment would be primarily of a ground oriented multiple type of development (e.g. town houses). This redevelopment would be spread throughout the Inner City. Some high density development would occur adjacent to existing and proposed LRT stations. The Downtown would take an increasing amount of high density apartment development.

1. Trend • to minimize disruption and change in people's lives, through continuing with the present pattern of growth.

2. Compact • to use the City's urban land resources more efficiently than under the trend, while not diverging to too great an extent from the quality of life experienced under the trend.

3. Concentrated to utilize the City's urban land resources as efficiently as possible, in rder to preserve agricultural land; conserve energy; and provide services as efficiently as possible.

Substantial increase. Although the Downtown would continue as the primary employment centre for the City, it would no longer accommodate significant office developments. Rather those would be directed to existing and proposed LRT stations; potential railway relocation lands, commercial strips; existing shopping centres; and suburban industrial areas.

Substantial increase. A high level of apartment and ground oriented multiple development would be distributed throughout the Inner City, resulting in larger amounts of existing housing stock being replaced. Additional apartment development within and adjacent to the Downtown would be required. A significant amount of high density redevelopment adjacent to proposed LRT stations would be necessary.

In the table, the comparison is adjustments may need to be made to simplified, and does not account for plans such as the Transportation Plan, variations in the development of the Parks Master Plan, and long range industrial land use, the transportation utility plans, in order to tie into the network, major utilities, and parks or selected growth option. Such open space. Policies governing adjustments will be initiated during the planning for these land uses will be year following adoption of the General included in the final Plan; the main Plan. reason for their exclusion at this time Although initially it is only these three being that the detailed evaluation stage broad growth options which are being has not yet been completed. When the examined, it is our intent to also evaluation has been completed, and a examine a number of variations of them. preferred growth option identified, By doing so, we will be able to mix and policies for the many other land uses in match particular components of the the City will be developed. Ultimately, growth options to determine which

Suburban Densities

Present suburban densities and mix of housing types (e.g. single family and multiples) would be maintained.

A moderate increase in those areas which do not yet have approved neighbourhood outline plans. With the exception of Castle Downs II, these areas are limited to one or two neighbourhoods in each outline plan area. This increase in densities would be achieved through smaller lots for single family development and a carefully integrated mixture of medium and high density apartment developments for the multiple family.

A substantial increase in those areas without approved neighbourhood outline plans. This would likely mean the transition from single family detached dwellings to two family attached units (e.g. duplexes), in combination with single family development on smaller lot sizes.

components are the most significant for minimizing future growth problems and for maintaining an acceptable quality of life in Edmonton in the future. For example, we will want to know if office decentralization by itself can reduce transportation congestion, or if it is essential that residential densities be increased as well. Another combination which might be examined would be the possibility of significantly increasing densities in the Inner City while at the same time maintaining, or even lowering suburban densities and not encouraging any additional office decentralization. This type of analysis will be undertaken in the more detailed evaluation stage.

On the following three pages the general growth options for the City are presented. The maps are generalized land use maps and illustrate the changes in Inner City and suburban No further controls over the staging of residential densities which would suburban development would be put occur under the different growth in place. At present, the City has very options. The maps show the variations little control over the timing of in the degree of office decentralization suburban development which has which would be encouraged under the resulted in delays in the provision of alternatives, according to both the such services as parks, adequate number and size of City sub-centres. roadways, and schools. These sub-centres were selected after a review of all potential sites on the basis of such criteria as the amount of land available and accessibility. The maps show commitments that have been A moderate increase in controls over made with respect to industrial and development would be put in place to residential development in the Suburbs, as well as the existing and ensure the availability of services required by these developments (e.g. proposed Light Rail Transit system. However, not all transportation roadways, parks). proposals are indicated since the focus of the General Plan is land use oriented. It should be emphasized that the land use maps are schematic and conceptual only and that they should not be taken literally. It is unrealistic to expect any of 1.7111 these growth options to be implemented exactly as shown on the following maps, due to variations which would occur through the Controls over development timng implementation process at the district the same nature as those in the or neighbourhood planning levels. "compact" option would be implemented. One final point should be made: whatever choices are made with respect to growth options, change will not occur immediately. Even with the most radical of growth strategies, at best we can only expect a gradual redirecting of growth over the next ten to fifteen years. Staging

Trend Growth Option

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Office - Retail Development (associated with Downtown; Commercial Strips and Shopping Centres)

N. B. - The increasing size of the circles means increasing densities and amount of development.

Increases in Density of Residential IIIDevelopment in Suburbs

Industrial Development (also includes Office Park Uses)

Existing Light Rail Transit System

Inner City and Inner Suburbs Redevelopment - Limited Increase in Density

Mixed Use Developments (Office, Retail and/or Residential) associated with existing and proposed L.R.T. Stations and proposed Town Centres

Low Density Residential Development in Suburbs

Medium - High Density Apartment Development in Inner City

Office Park Development (associated with proposed L.R.T. Stations - these developments will also include some Retail Uses)

Proposed Light Rail Transit System Inner City and Inner Suburbs

Conceptual Drawing Only. The symbols on these maps are not to scale and should not be interpreted as such.

Compact Growth Option

Legend Low Density Residential Development in Suburbs Increases in Density of Residential Development in Suburbs Inner City and Inner Suburbs Redevelopment - Moderate Increase in Density Medium - High Density Apartment IIIDevelopment in Inner City

• •• •

Office - Retail Development (associated with Downtown; Commercial Strips and Shopping Centres)

N. B. - The increasing size of the circles means increasing densities and amount of development.

Industrial Development (also includes Office Park Uses)

Existing Light Rail Transit System

Mixed Use Developments (Office, Retail and/or Residential) associated with existing and proposed L.R.T. Stations and proposed Town Centres Office Park Development (associated with proposed L.R.T. Stations - these developments will also include some Retail Uses)

Proposed Light Rail Transit System Inner City and Inner Suburbs

Conceptual Drawing Only. The symbols on these maps are not to scale and should not be interpreted as such.

Concentrated Growth Option

Legend Low Density Residential Development in Suburbs

Increases in Density of Residential Development in Suburbs Inner City and Inner Suburbs Redevelopment - Substantial Increase in Density

III

Medium - High Density Apailment Development in Inner City

Office - Retail Development (associated with Downtown; Commercial Strips and Shopping Centres)

N. B. - The increasing size of the circles means increasing densities and amount of development.

Industrial Development (also includes Office Park Uses)

Existing Light Rail Transit System

Proposed Light Rail Transit System Inner City and Inner Suburbs

Conceptual Drawing Only. The symbols on these maps are not to scale and should not be interpreted as such.

Preliminary Evaluation of Growth Options

In order to assist citizens in assessing 2. Ability to Accommodate Growth: the priorities and trade-offs outlined Price of Land earlier, the following evaluation of the Using this criterion, the growth growth options is presented. It should options are assessed in light of their be clearly understood that this impact on the price of residential, preliminary evaluation is not based on industrial and commercial office a rigorous technical analysis of the land. growth options. Rather, it is the result of 3. Cost of Providing Services a review of the growth options based on The three growth options are both subjective and intuitive judgment assessed according to the cost to the from primarily a land use planning City of providing services, for both perspective. As the General Plan capital and operating expenditure. Review proceeds, further research will 4. Fiscal Impact be carried out on each of the growth Under this criterion, the options are options to ensure an accurate analysis evaluated for their implications to the of the costs and benefits associated with assessment base and tax rates. each option. At the same time that this type of analysis is being conducted, we will also be hearing from the citizens of Edmonton in terms of their likes and dislikes in regard to the three growth options identified. In order to choose the preferred growth strategy for the City, both the technical analysis and the feedback from Edmonton's citizenry will be used. Keeping these qualifications in mind, the criteria used in this preliminary evaluation are as follows: 1. Ability to Accommodate Growth: Amount of Land Using this criterion, the three growth options are assessed in terms of the City's ability to accommodate growth. Such indicators as availability of suburban land for residential development and the availability of land for office and industrial development are used.

5. Level of Municipal Services Using this criterion, the three growth options are assessed in terms of the level of improvement each could bring to the provision of services such as transportation, schools, and parks. 6. Social Impact Using this criterion, the growth options are assessed in terms of their influence on social factors in the City, such as community identity and choice of housing. 7. Environmental Quality Using this criterion, the change in living environment expected to result from each of the growth options is assessed.

Preliminary Evaluation of Growth Options Planning Criteria

Trend

Compact

Concentrated

Due to the low densities of suburban and Inner City development, this growth option has the highest rate of suburban residential land absorption.

With a moderate increase in suburban and Inner City densities, the City would be able to prolong its supply of raw land.

A substantial increase in suburban and Inner City densities would prolong the City's supply of raw land to the greatest extent.

(b) Availability of land for residential redevelopment

Under this option, opportunities for redevelopment over and above existing zoning are limited.

Because of the increase in densities in the Inner City allowed under this option, a moderate increase in the amount of land for redevelopment would result.

A considerable increase in the amount of land available for redevelopment would result from this option.

Under this option, the supply of land for office development would be concentrated in the Downtown.

Policies encouraging a moderate decentralization of office space would result in supply of land in both th Downtown and selected suburban locations.

A substantial level of decentralization could robably be achieved only by olicies restricting the land upply in the central area, and 1 . reating such a supply in suburban locations.

(d) Availability of land for industrial development

Under this option, the City's industrial land supply is prolonged the most, due to the limited use made of industrial land for other, non-industrial purposes.

Moderate office decentralization to industri areas would result in some reduction in the supply of industrial land.

The higher rate of suburban land absorption and the limited number of areas for Inner City redevelopment would result in the greatest increases in the price of residential land, and thus housing costs.

The prolonging of the This option would result in suburban land supply coupled the least increase in residential with moderate supply land prices (particularly increases in the Inner City 1 ultiple family land), due to would result in lower price e increase in supply which increases than under the ould be created. "Trend", particularly for multiple family housing.

1. Ability to accommodate growth: amount of land (a) Availability of suburban land for residential development

ubstantial office ecentralization wo resu t the greatest reduction in the pply of industrial land.

Economic Criteria 2. Ability to accommodate growth: price of land (a) Price of residential land

Trend

Compact

Concentrated

Prices would increase the least under this option, due to the fewer office uses locating on industrial land, which tend to increase the price.

Office decentralization would place pressure on industrial land prices, as well as decrease the supply available for industry.

Substantial office decentralization would likely raise industrial land prices considerably through competition for land.

Concentrating growth ihi the central area would result in high priced office land, due to the already high value of downtown land.

Because growth would be directed to areas with relatively low land values, land prices would likely increase at a much slower rate than under the trend.

This growth option would result in higher suburban land prices than the Compact, due to the necessity to restrict land supply in the Downtown.

Some expenditure required, to service redevelopment which will occur under existing zoning.

In the initial years of implementing this option, only limited capital expenditure would be necessary.

In the initial years of implementing this option, significant capital expenditure would be necessary to expand capacity of infrastructure.

(b) Annual amount of capital expenditure required to accommodate suburban growth

Substantial expenditure required in order to serve large amounts of suburban land which would be developed under this option.

In new growth areas, capital In new growth areas, capital yenditure on suburban expenditure would be reduced ices would be least under from the trend, since rate of option, since the rate of suburban land development urban land development would be curtailed. uld be the lowest.

Under the assumption that there is an inverse relationship between residential density and per capita operating cost of providing services, costs would increase the most quickly under this option.

Because residential densities would be greater under this option, per capita costs would not increase at as fast a rate as under the trend. ii

(b) Price of industrial land

TIME

Financial Criteria 3. Cost of providing services (a) Annual amount of capital expenditure required on Inner City infrastructure

TREND

TIME

TREND . â&#x20AC;&#x17E;..000

r capita costs would rease the slowest under this tion, since densities would the greatest.

00MEACT CONGER...

TIME

4. Fiscal Impact (a) Total tax revenue

COMPACT CONCENTRATED

Trend

Compact

Concentrated

Total tax revenue would be least under this option due to the lower density of development in residential and industrial areas.

Increased densities of development would yield increased tax assessment and revenues.

Tax revenue would be greatest under this option, due to the substantial increases in density.

Since costs would be highest and assessment least, this option yields the highest tax rate.

This option combines lower cost of providing services with an increased assessment base, implying taxes lower than the trend.

This option results in the lowest tax rates, combining lowest operating costs with highest tax revenue.

This option yields the lowest level of service (as measured by time to travel by either public transit or automobile). This conclusion results from the congestion created by combining low density, automobile oriented suburbs with a concentration of jobs in the central area.

This option results in levels of transportation service which do not decline as quickly as under the trend, due to increased densities and decentralization leading to more efficient use of public transit and roadways.

This option would likely result in levels of transportation service between the trend and the compact. This conclusion relates to the increased densities under this option, which contribute to congestion despite the increased level of transit service which would likely be possible.

The present delay in the provision of these facilities would continue.

Increased densities would result in the more economic provision of these facilities, I and therefore the facilities could be provided at the time development takes place. The collection of a redevelopment levy in the Inner City would ensure the provision of these facilities in the area where redevelopment occurs.

Increased densities would make the provision of these lacilities more economical; iowever, the level of nvestment would be greater with the concentrated form of development, and therefore some delay in providing these services would continue, but in all likelihood not to the extent under the trend.

Present under-utilization of elementary schools in the Inner City would continue. Bussing of children in the Suburbs would continue.

Inner City schools would be better utilized through increased densities. The incidence of bussing of children in the suburbs would decrease.

Use of Inner City schools would be maximized through increased densities and the selective closure of schools. The incidence of bussing children in the Suburbs would be least.

TREND

TIME

(b) Increase in taxes required to provide services

TREND

COMPACT

CONCENTRATED

TIME

Social Criteria 5. Level of municipal services (a) Transportation services

TREND .

(b) Parks and recreation facilities

COMPACT CONCENTRATED

TREND

TIME

CO C

TED COMPACT

TREND 0 IL

TIME

(d) Fire, Police, Health and Social Services

Trend

Compact

Concentrated

The present level of service would continue. In some cases, this level of service would likely not be as high as it might be, due to the low densities of development and thereby, tax revenues available to support these services.

A moderate increase in densities would make the provision of these services more economical. In some cases (e.g. fire protection), the level of service possible would be increased.

Due to the larger level of investment required to serve this form of development, a delay in providing some of these services would result. In the long run, the provision of these services would be more economical.

TIME

6. Social Impacts (a) Community Identity

(b) Choice of housing

TIME

COMPACT CONCENTRATED

Assuming an inverse relationship between degree of mixture of housing types and community identity, this option would result in greater opportunity to build community identity. Residential development would continue with the greatest emphasis on single family units.

A greater mix of multiple and single family type accommodation in the Suburbs and Inner City would decrease the homogeneity of these areas and possibly the ability to build a community identity.

The concentrated growth option would be least conducive to the developmen of community identity. This would result from the increased mix of multiple and single family development in both the Suburbs and the Inner City.

Under the trend option, considerable choice in the housing market would continue to be available in the short term. However, once land for the development of single family homes is used up, a significant increase in the cost of single family homes will result and choice to the consumer will be severely limited.

Under this option, choice in the housing market would last longer, as the supply of land would be prolonged through a moderate increase in densities. However, the amenities associated with the single family home would be somewhat reduced (e.g. smaller lots).

Under this option, choice in the housing market would also last longer. Opportunities for purchasing new single family detached homes would be increased even further than under the compact option due to the increase in densities of single family development. Amenities associated with this development would be significantly reduced.

Due to the low density of development in the Suburbs and Inner City, provision of services such as social related programs would be very costly. Under this option, there would be less accessibility to these services.

With a moderate increase in densities, and thereby tax revenues, increased access to opportunities such as social related programs would be probable.

Under the concentrated option, it is likely that the choice of more specialized programs and facilities would be improved. However, due to the substantial increase in numbers of people, access may be more restricted or delivery of these services delayed.

A moderate increase in the densities of development would not change substantially the quality of living environment in the Suburbs. This increase in densities would be better integrated with existing densities through more effective urban design. Levels of noise and air pollution would remain relatively low.

A substantial increase in suburban densities would result in a greater emphasis o an attached type of dwelling unit (duplex) which would mean a reduction in the amount of living area, privacy and type and amount of op space available to each dwelling unit, as well as increased levels of noise.

TREND

TDAE

Environmental Criteria 7. Quality of the environment:

The low density living aesthetics and lack of pollution environment presently available in the Suburbs would (a) Quality of suburban continue, resulting in environment considerable amounts of private open space and low levels of noise and air pollution.

(b) Quality of Inner City living environment

TREND

TIME

Trend

Compact

Concentrated

The present restrictions in Inner City redevelopment would continue. This would enable the single family character of Inner City communities to be maintained. Under the trend option, the Inner City would continue to be disrupted by increasing traffic, and thereby threatened by potential roadway widening requirements. Those Inner City communities (Oliver, Garneau, Boyle Street) presently under pressure for redevelopment would have to continue to meet the demand for high density housing.

A moderate increase in densities would take some of the pressure off those areas presently meeting the demand for high density accommodation and reduce traffic congestion, without dramatically changing the single family character of Inner City communities. Increases in noise and air pollution would be minimal.

A substantial increase in the density of development permitted in the Inner City would reduce the single family character of Inner City communities, resulting in smaller living space, less privacy and a reduced amount of open space available to each dwelling unit. Noise and air pollution could be increased.

The present emphasis on office development would continue, thereby reducing the opportunities for imaginative urban design. Maintaining the Downtown as the primary employment centre would also mean significant increases in the level of traffic congestion.

A moderate decentralization of office space away from the Downtown would increase opportunities for residential development in the Downtown. Careful design of the Downtown's residential environment would make it a desirable place for singles and childless couples to live.

Under the concentrated growth option, greater amounts of both office and residential development would be necessary. This would reduce the desirability of the Downtown residential environment and decrease the benefits associated with the decentralization of office space away from the Downtown (e.g. reduced traffic congestion).

TIME

General Conclusions The table entitled "Summary of Preliminary Evaluation of Growth Options" on the opposite page portrays a simplistic integration of the evaluation criteria. This integration has been accomplished through ranking, a method which, although open to much criticism, does yield a "first-cut" impression of the implications of the evaluation. As indicated earlier, this evaluation will be bolstered through more rigorous analysis of the growth options, including an assessment of the weights which should be attached to various criteria. This broad evaluation shows that the most desirable growth option would be to move towards a more compact form of development, but not to the extent of concentrating growth such that a radical departure from the quality of living environment presently available in the City results. However, the evaluation indicates that, for many criteria, the concentrated growth option is more desirable than the compact one. The closeness of the results of the evaluation points all the more to the need for citizen input on the weight which should be attached to the various criteria. 26

A compact pattern of growth means the acceptance of a moderate increase in densities of development in the Suburbs and the Inner City, in order to obtain a higher quality of services than would be available if we continued with the City's present pattern of growth. Based on these kinds of trade-offs, the questions which have to be asked are, first of all, whether citizens agree that a more compact form of development is desirable. If so, the second question is the extent to which we should encourage compactness and concentration. Some of the specific areas which need discussion include; • the degree to which we should slow down our rate of suburban land absorption; • the degree to which densities could be increased in the Suburbs; • the proportionate increase in redevelopment in the Inner City which could be allowed; • the areas in the City where redevelopment could occur; • the degree of office decentralization which could be encouraged; and • potential locations in the City to which jobs could be decentralized.

Views on these questions will assist us

considerably in choosing our preferred growth strategy. Through a review of the long range plans of other major Canadian and American cities, it has been found that many of these cities are moving towards an increasingly compact form of development. Edmonton has already taken some major initiatives in the area of rapid transit, and this action holds much promise in ensuring that we can continue to shape our own future and prevent some of the major problems facing other cities. From a planning point of view, a move towards a more compact form of growth would provide definite benefits over the City's present pattern of growth. The question which needs to be answered now is the degree of compactness we should strive for. In the end, the answer to this question will have to come from both a technical analysis which will show us the real costs and benefits of a more compact pattern of growth; and from the citizens of Edmonton through an indication of the extent of change they are willing to accept in their living environment in order to improve the quality of services available to them.

Planning Criteria

Social Criteria

1. Ability to accommodate growth: amount of land (a) Availability of suburban land for residential development (b) Availability of land for residential redevelopment (c) Availability of land for office development (d) Availability of land for industrial development

5. Level of municipal services (a) Transportation

0 0 0

•• •

Economic Criteria 2. Ability to accommodate growth: price of land (a) Price of residential land

(b) Price of industrial land (c) Price of office/commercial land

(b) Parks and recreation (c) Schools (d) Fire, Police, Health, Social Services 6. Social impact (a) Community identity (b) Choice of housing

Environmental Criteria 0

Financial Criteria 3. Cost of providing services (a) Annual amount of capital expenditure required on Inner City infrastructure (b) Annual amount of capital expenditure required to accommodate suburban growth (c) Per capita operating cost of providing services

Concentrated

Summary of Preliminary Evaluation of Growth Options

•

7. Aesthetic and pollution-free quality of the environment (a) Level of improvement in suburban living environment (b) Level of improvement in Inner City living environment (c) Level of improvement in Downtown living environment

0 0

4. Fiscal impact (a) Total tax revenues

Summary Assessment

•• • NJ

(b) Tax rate (increase in taxes required to provide services)

Legend Indicates that the particular option is most desirable from the point of view of this criterion.

Indicates that the option is acceptable from the point of view of this criterion.

that the option is least desirable from the 0 Indicates point of view of this criterion.

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[ A considerable portion of this Preview has been devoted to outlining the choices which citizens will be asked to make regarding whether or not they wish to have a more compact form of development. Although the growth strategy will certainly comprise a major component of the General Plan, the Plan will also draw together policies relating to other planning subjects and recommend the ways in which these policies may be implemented. In essence, therefore, the final General Plan will deal with the planning issues in two ways: 1. The issues will be discussed in terms of how they may be dealt with through the adoption of an overall growth strategy for the City. This discussion will emphasize the interrelatedness of the issues and will deal with the trade-offs from a City-wide perspective. 2. The issues will also be examined separately, since many of them are not necessarily tied to one growth option or another. The General Plan will propose urban development policies relating to a number of subject areas including: the Downtown, Inner City Neighbourhoods, the Suburbs, Transportation, Urban Design, Parks and Recreation, Citizen Participation, and Economic Development. This particular section of the Preview lists some of the issues which will be addressed in the General Plan under 28

these major subject areas. For a more detailed discussion of these issues refer to the series of Edmonton General Plan Issue Papers, published by the Planning

Department in January, 1979.

The Downtown While the discussion of the growth options will focus on the major questions of how the Downtown should grow and how much office development should be directed to subcentres rather than the Downtown, there are a number of other issues relating to the long term development of the Downtown that must be addressed. These will be dealt with in both the General Plan and the

more detailed Downtown Plan. The General Plan will provide the policy direction, while the Downtown Plan sets out more detailed planning guidelines. Some of the issues for which the General Plan will provide broad policy direction to the Downtown Plan include: • the provision of parks and amenities in the Downtown; • preservation of historic buildings; • design controls on private development; • housing in the Downtown; and • development of special purpose districts such as the Downtown Warehouse District.

Inner City Neighbourhoods

Transportation

Regardless of which overall growth option is chosen for the City, the older neighbourhoods in the Inner City will continue to be faced with a number of issues at the local level relating to: • incompatible land uses; • the pressure for redevelopment; • the need for park space and community facilities; • the need for rehabilitation of the housing stock; and • the need for viable commercial strips and neighbourhood commercial areas. In establishing policies to address the wide range of issues facing Edmonton's older neighbourhoods, the General Plan must balance the needs of the Inner City areas with those of the City as a whole. The Plan will provide a policy framework within which to undertake neighbourhood and district plans and as such will contain policy statements on specific issues such as those outlined above.

The General Plan, in recommending an overall growth pattern for the City, will establish land use policies which require complementary and supportive policies for the development of the total transportation system. In addition to its influence on the City-wide transportation network, the General Plan will also address a number of specific issues related to land use and transportation such as: • parking in the Downtown and the Inner City; • City-wide bicycle routes; • pedestrian facilities; • transportation impacts on adjacent land uses; • public transit; and • energy conservation. In addressing questions such as those mentioned above, the General Plan will reinforce and re-examine the policies set out in the City's Transportation Plan, and in doing so will emphasize the link between land use planning and the planning of our transportation systems.

The Suburbs The growth option discussions will focus primarily on policies relating to the supply of residential land and the staging and financing of development and will outline general guidelines for the form which new development should take in the Suburbs. However, there are a number of specific issues relating to the development of these new residential neighbourhoods which will need to be examined separately and in detail. Through the General Plan it will be possible to focus on ways and means to implement some of the desired changes in suburban development in relation to issues such as: • the design of neighbourhoods, park areas and the slreetscape; • the location of low income housing projects; and • the development of suburban shopping centres into more diversified City subcenters. In a similar manner to the Downtown and Inner City planning processes outlined previously, the General Plan will outline the policies governing suburban land development. These policies will then be incorporated into the process for preparing and reviewing neighbourhood outline plans and plans of subdivisions.

Urban Design While the General Plan may provide policy direction for improved urban design in the City, it is through the Land Use Bylaw and specific studies and local

area plans that improvements can be implemented. More specifically, the Land Use Bylaw will provide detailed design policies and guidelines for such things as building intensity, private open space, parking requirements, and landscaping. Studies presently underway which address the question of urban design include "Street Furniture in Edmonton" and "The Design and Distribution of Density in the New Neighbourhoods". In order to provide the policy direction for improved urban design in Edmonton it will be necessary to discuss some of the following issues through the General Plan Citizen Participation Process: • historic preservation of buildings and districts such as Chinatown and Strathcona; • the quality of environment in the Downtown, in commercial strips, in industrial areas, and in residential areas; • reduction in the negative effects of higher density development through proper site and building design; • consideration of the special needs of such population groups as the elderly and the handicapped; • improvement of energy efficiency through innovative building design and site planning.

Parks and Recreation The choice of a particular growth option for the City will influence the future development of Edmonton's parks and recreation facilities. The Parks and Recreation Master Plan is the document which provides detailed guidelines and standards for the development of open space, recreation facilities and programs, and as such, it will be used to help implement the General Plan growth strategy. Most of the major parks and recreation issues facing Edmontonians today are dealt with in this Master Plan. However, the General Plan, as the City's major land use planning document will provide policy direction aimed at resolving a number of parks and recreation issues which are interrelated with the development of the Downtown, residential areas, transportation corridors and the River Valley. Some of the issues which will be addressed by policies in the General Plan are: • development of park space and community facilities in existing neighbourhoods; • development of a greater variety of parks in new residential areas; • staging of parks and recreation facility development in new residential areas;

• development of amenities in the Downtown; • the protection of the North Saskatchewan River Valley system.

• What resources of the City might be required to assist citizen involvement?

Economic Development

While the broad questions such as the supply of industrial land and the The issue of citizen participation in the location of office development in the City will be addressed in the discussion planning process will be addressed through the General Plan and policies on growth options, there are a number of more specific issues relating to the will be established to encourage effective participation at the City-wide, economic development of the City district and neighbourhood level. The which will have to be dealt with major new policy thrust which will be separately. Some of these issues are: • guidelines for commercial/industrial examined through the General Plan redevelopment near LRT station areas; Review process will be the concept of "District Planning" which is seen as an • design guidelines for the important link between detailed redevelopment of City subcentres; • guidelines to minimize conflicts planning at the neighbourhood level and the broad policy-oriented between commercial, industrial and residential land uses; and perspective of the General Plan. In • guidelines for commercial strip preparing a policy for citizen redevelopment. participation, consideration will be given to some basic questions such as: While many of these design guidelines • What planning decisions should and regulations will be set out in detail involve citizen participation? in the new Land Use Bylaw, the General • At what stage should citizens be Plan will provide a framework and involved? policy direction for these land use • What are the time requirements and control mechanisms. costs of citizen participation? • How should participation be designed to account for the different interest levels and capabilities of communities?

Citizen Participation

Implementing And Monitoring The Plan

Implementation Measures As the General Plan will be adopted by City Council as a bylaw, recommendations contained in the Plan will be legally recognized as Council policy. In order to maintain a realistic perspective as to the feasibility of implementing the Plan recommendations, it should be emphasized that the General Plan is a long range plan and change will not be immediate. Some of the recommendations will require new sources of financing, some will require changes in departmental programming, some will require that detailed implementation studies be undertaken, while others may require negotiations with the senior governments or the private sector. One of the primary implementing tools which will be used by Council and the Civic Administration in implementing the General Plan is the recently introduced "Local Policy Plan" prepared by the Corporate Policy Planning Office of the City. The Local Policy Plan is prepared annually, and provides a comprehensive summary of all civic departmental plans. It attempts to project the capital investments which will be required in the next five years. As such, the Local Policy Plan provides the link between the urban growth policies adopted through the General Plan and

the long term capital budgeting programs of the Civic Administration. Once the General Plan is adopted by Council, any necessary shifts in departmental priorities and budgets will be incorporated into subsequent Local Policy Plans. The other main implementing tool for the General Plan is the land use control process. As described earlier, the General Plan is linked to other more detailed plans, such as the Downtown Plan and local neighbourhood plans. These plans in turn rely on the Land Use Bylaw for implementation. The planning guidelines in the General Plan will thus ultimately be reflected in the Land Use Bylaw; changes to the Bylaw must be consistent with the Plan.

The Monitoring Process It is expected that after the General Plan is adopted by Council, a General Plan Implementation Team will be established to monitor progress on the Plan, to review development trends for consistency with the Plan targets, and to make amendments to the Plan as necessary. The General Plan will be an effective document only if it can be closely monitored and kept up-to-date. The monitoring process is therefore an essential part of the planning process.

Citizen Involvement in Implementation No matter what measures are taken by the Civic Administration to implement the policies of the General Plan, if the Plan is to be implementable and applied it must have the general support of the public at large. This support is being solicited through the General Plan Citizen Participation Process. Through the General Plan review process the public is being asked to contribute not only to the making of the Plan but also to the ongoing process of implementing the planning policies contained in the Plan. Through the process of preparing the General Plan, several strategies for improving citizen participation in the planning process are being examined. One exciting proposal being studied which deserves special mention is the District Planning concept. While citizen involvement in planning has become increasingly effective at the neighbourhood level in recent years, the potential longer-term impact of this involvement is sometimes lost due to the inability of citizens to get together on the broader, district level issues. The creation of District Planning Areas would allow a middle level of citizen involvement, linking the neighbourhood level planning activity to the General Plan. If this link can be made, the chances of implementing the broad policy objectives of the General Plan will be greatly enhanced.

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Upcoming Citizen Participation Process

citizen participation paper, to be published in April, 1979. Both the results of the public meetings and the This Citizen's Preview will act as the material presented in the briefs will be main source document for the series of valuable information which will be used Citizens' Workshops in March and April, 1979. As a summary document, in preparing the final draft of the Edmonton General Plan. this discussion paper will provide the It is anticipated that the General Plan basis for the involvement of citizens in the development and evaluation of the will be submitted to Council in May or June, 1979. Following Council's first overall growth strategy for the City. It also will act as a catalyst to evoke citizen reading, a six week public information input on the wide range of more specific process will be held to allow individual citizens and interested groups to react to urban development questions facing the final Plan recommendations and to E dmontonians today. prepare briefs which document their It is intended that individuals and concerns as they relate to these interest groups will present briefs on recommendations. General Plan issues and opportunities at As the final phase in the General Plan any time during or after the Citizens' Workshops phase. This document, the Citizen Participation Process, formal General Plan Issue Papers, and the more public hearings will be held by City technical background papers referred to Council to enable citizens to make their as "Workshop Papers" should provide official presentations. Once the Plan is adopted by Council, an implementation sufficient background material for citizens to base their presentations and program will commence to ensure that the growth strategy and the interrelated briefs on the General Plan issues and urban development policies are opportunities. The feedback from citizens on planning implemented. issues from the Citizens' Workshops will be summarized in a "Report Back"

For Further Information The Citizen's Preview is one of many reports which will be published by the Planning Department during the General Plan Citizen Participation Process to inform citizens about the various proposals being discussed. In order to provide an initial overview of the planning issues facing Edmontonians today, the Planning Department has produced a series of Issue Papers on the following subjects: 1. A Citizen's Guide to the Edmonton General Plan 2. The Downtown 3. The Inner City 4. The Suburbs 5. Transportation 6. Economic Development 7. Parks and Recreation 8. Citizen Participation 9. Housing Costs 10. The Land Use Bylaw 11. Urban Design 12. Energy Conservation.

Additional reports which will be published as the Citizen Participation Process proceeds include: • technical background papers (referred to as "Workshop Papers") on topics such as growth forecasts, a detailed description of Edmonton's growth options, and General Plans of other cities. • a report on the citizens' input into the General Plan (referred to as the "Report Back" Citizen Participation Paper) • technical background papers, explaining in detail the findings in the General Plan (referred to as "Background Papers") • the Edmonton General Plan. It is hoped that the citizens of Edmonton will take advantage of the opportunity to speak out on what kind of future they would like to see for Edmonton. Citizens will be kept informed on the progress of the Plan throughout the ongoing Citizen Participation Process. Some of the components of this program will be: • public workshops and seminars • open houses • newspaper articles • displays • information centres.

Copies of the Edmonton General Plan publications, as they become available, may be picked up (free of charge) at the following locations: • Information Desk, Main Floor, City Hall • Maps and Publications Desk, Planning Department 7th Floor, City Hall Government Information Division, • 2nd Floor, Centennial Library • All City of Edmonton Branch Libraries • All City of Edmonton: — Parks and Recreation District Offices — Neighbourhood Improvement Program (NIP) Field Offices — Social Service Centres. For further information about the contents of this Citizen's Preview Or about the Citizen Participation Process for the General Plan Review, please contact: General Plan Review Team City of Edmonton Planning Department 1405 Centennial Building 10015 - 103 Avenue Edmonton T5J OH1 Telephone: 428-3536

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