Edmonton (Alta.) - 1979 - Introductory submission of the Edmonton annexation application (1979-09) by Edmonton Tower Resource Centre Online Library

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INIRODUCIORY SUBMISSION OF THE EDMONTON ANNEXATION APPLICATION

STATEMENTS BY:

Mayor, C. J. Purves Chief Commissioner, D.F Burrows Project Director, DR. Podmore As presented to the Alberta Local Authorities Board, September,1979

OPENING STATEMENT TO

LOCAL AUTHORITIES BOARD BY

MAYOR C. J. PURVES

CITY OF EDMONTON

September, 1979

OPENING STATEMENT TO LOCAL AUTHORITIES BOARD BY MAYOR C. J. PURVES, CITY OF EDMONTON

I WELCOME THIS OPPORTUNITY TO MAKE A BRIEF PRESENTATION TO YOU BEFORE YOU LAUNCH INTO YOUR INQUIRY OF EDMONTON'S PROPOSED BOUNDARY ADJUSTMENT.

THE CITY IS AWARE OF THE SERIOUS AND FAR-REACHING IMPLICATIONS OF THIS APPLICATION, AND A GREAT DEAL OF CAREFUL STUDY OF ALL OF ITS RAMIFICATIONS WENT INTO COUNCIL'S DECISION, REACHED ON MARCH 20th, TO PROCEED WITH THIS APPLICATION. WHILE THE DECISION WAS NOT UNANIMOUS, EIGHT OF THE ALDERMEN, AS WELL AS MYSELF, SUPPORTED IT.

THE NOTED HESITANCY TO TAKE STEPS, OR TO APPROVE PROCEDURES WHICH WOULD IMPINGE SO TRAUMATICALLY UPON OUR NEIGHBOURING AREAS AND ADJOINING URBAN CENTRES, UNDERLINES THE CAREFUL THOUGHT AND CONSIDERATION THE ALDERMEN GAVE TO THE ISSUES. I THINK ALDERMAN HAYTER'S STATEMENT AT THE TIME, WHICH I WILL QUOTE VERBATIM, SUMS UP THE MAJORITY VIEW:

"I THINK WE HAVE A RESPONSIBILITY AS ELECTED REPRESENTATIVES TO PLAN AND PREPARE FOR THE FUTURE. WE MUST PLAN, LOOK AHEAD, PREPARE. A RESPONSIBLE POLITICIAN MUST RISE ABOVE THE TURMOIL AND PRESSURES OF THE MOMENT TO CHART A SANE AND SENSIBLE COURSE FOR THE GENERATIONS AHEAD AND THAT IS THE SOLE PURPOSE OF THIS EXERCISE TODAY.

IT IS NOT A

QUESTION OF A GREEDY CITY AND A MASSIVE LAND GRAB, AS SOME OF THE MEDIA HAVE INDICATED, IT IS REALLY A QUESTION OF PROTECTING THE CITY'S FUTURE.

IT IS A MATTER OF RESPONDING

TO THE WARNING BELLS OF THE PRESENT TO INSURE THE CITY'S FUTURE VIABILITY AND ECONOMIC HEALTH. WHILE THE PROPOSAL OBVIOUSLY INVOLVES ANNEXATION, I WOULD SUGGEST THAT THE PRINCIPLE DESIRE IS TO RATIONALIZE THE BOUNDARIES OF THE EDMONTON METROPOLITAN REGION SO THAT THE SOCIAL ECONOMIC NEEDS OF THE AREA WILL BE ADDRESSED IN A COORDINATED AND RESPONSIBLE FASHION."

OVER THE PAST 24 YEARS, WHENEVER THE MATTER OF BOUNDARIES IS CONSIDERED, WHETHER THOSE OF THE CITY OF EDMONTON OR OF THE CITY OF CALGARY, IT BECOMES NECESSARY TO REFER TO THE REPORT OF THE McNALLY ROYAL COMMISSION.

IN 1954, THE PROVINCIAL CABINET APPOINTED THIS ROYAL COMMISSION TO MAKE RECOMMENDATIONS CONCERNING BOTH BOUNDARIES AND FORM OF LOCAL GOVERNMENT IN BOTH OF THE PROVINCE'S MAJOR CITIES.

- 3 WE ARE INDEBTED TO THE FAR-SIGHTEDNESS AND PERCEPTION OF THOSE WHO COMPRISED THAT BODY, CHAIRED BY DR. GEORGE FREDERICK McNALLY OF EDMONTON, AND INCLUDING GILBERT McNEILL BLACKSTOCK, Q. C. OF EDMONTON PERCY G. DAVIES, Q. C. OF CLYDE, ALBERTA IVAN C. ROBISON OF CALGARY, and CHARLES PATRICK HAYES OF CALGARY.

THE WORK OF THAT COMMISSION LASTED OVER A PERIOD OF ABOUT TWO YEARS, AND IN THE END RESULT THE COMMISSION RECOMMENDED THAT THE BOUNDARY OF THE CITY OF EDMONTON BE EXTENDED FROM 43 SQUARE MILES TO ABOUT 112 SQUARE MILES -- TO INCLUDE THE THEN ADJOINING TOWNS OF JASPER PLACE AND BEVERLY. AS WELL, THE EASTERN BOUNDARY WOULD EXTEND TO INCLUDE WHAT IS NOW THE HAMLET OF SHERWOOD PARK.

IT IS WORTHWHILE TO NOTE THAT PRIOR TO THE McNALLY COMMISSION REPORT THE CITY WAS EXPERIENCING A BOOM AND THE ONCE ADEQUATE BOUNDARIES WERE QUICKLY OVER-RUN. JASPER PLACE AND BEVERLY EXPERIENCED SUBSTANTIAL GROWTH, ST. ALBERT BEGAN TO TAKE ON A MORE URBAN CHARACTER, THERE WAS A PROPOSAL FOR A NEW COMMUNITY IN THE COUNTY OF STRATHCONA - SHERWOOD PARK - AND A RASH OF ANNEXATION APPLICATIONS WERE SUBMITTED BY LANDOWNERS AND DEVELOPERS.

- 4 TODAY, THE SITUATION THAT THE CITY FACES IS OF EQUAL CONCERN. WE FIND OURSELVES CONFRONTED BY A BOOM THAT IS ANTICIPATED TO PERSIST FOR SOME TIME. MOREOVER THE TWO FRINGE COMMUNITIES OF ST. ALBERT AND SHERWOOD PARK HAVE TAKEN ON STRONG DORMITORY CHARACTERISTICS, THERE ARE TWO NEW TOWN PROPOSALS AT ENOCH AND ARDROSSAN, THERE HAS BEEN A PROLIFERATION OF INDUSTRIAL DEVELOPMENT IMMEDIATELY ADJACENT TO OUR BOUNDARIES AND PERIPHERAL FARMLAND IS CONTINUALLY BEING PROPOSED FOR HOBBY FARMS AND COUNTRY RESIDENTIAL ESTATES.

OBVIOUSLY, OUR GROWTH PROBLEM TODAY IS EQUALLY AS GRAVE, IF NOT MORE SO, THAN THAT TACKLED BY THE McNALLY COMMISSION MORE THAN TWO DECADES AGO.

THERE ARE CERTAIN PARALLELS WHICH CAN BE DRAWN IN CONSIDERING THE GROWTH PROBLEMS OF THAT FORMER ERA, AND TODAY. THE McNALLY COMMISSION RECOGNIZED THE IMPACT ON METROPOLITAN GROWTH IN THE EDMONTON AREA AS A RESULT OF THE DEVELOPMENT OF THE LEDUC AND 1 REDWATER OILFIELDS WHICH OCCURRED FOLLOWING 1947. DURING THE CURRENT DECADE WE HAVE SEEN THE DEVELOPMENT OF MASSIVE TAR SANDS PROJECTS IN THE NORTH WHICH HAS CAUSED SUCH EXPLOSIVE POPULATION GROWTH IN THE REGION. Report of the Royal Commission on the Metropolitan Development of Calgary and Edmonton, G. Fred McNally, Chairman (Edmonton, Alberta: Queen's Printer, 1956), Chapter 8, pp. 8 and 9.

EDMONTON'S ATTEMPTS TO OBTAIN BOUNDARY ADJUSTMENTS THROUGHOUT THE PERIOD FOLLOWING ON FROM THE McNALLY REPORT WILL BE DOCUMENTED IN DETAIL IN THE PRESENTATION OF OUR CASE.

BUT I WOULD LIKE TO OUTLINE VERY BRIEFLY SOME OF THE EVENTS WHICH BRING US BEFORE YOUR BOARD TODAY.

BY 1961 THE PUBLIC UTILITIES BOARD APPROVED THE ANNEXATION OF THE ADJOINING TOWN OF BEVERLY TO THE CITY OF EDMONTON. THE POPULATION OF THE TOWN WAS 9,000.

In 1962 BOTH JASPER PLACE AND EDMONTON FILED ANNEXATION APPLICATIONS TO ANNEX JASPER PLACE TO EDMONTON.

EDMONTON ALSO

APPLIED TO ANNEX PORTIONS OF THE COUNTY OF STRATHCONA ON ITS EASTERN BOUNDARY WHICH WOULD HAVE INCLUDED THE INDUSTRIAL CORRIDOR IMMEDIATELY ADJACENT - AS WELL AS THE HAMLET OF SHERWOOD PARK. BY THIS APPLICATION THE CITY WOULD HAVE SUBSTANTIALLY MET THE RECOMMENDATIONS OF THE McNALLY COMMISSION.

THE LOCAL AUTHORITIES BOARD REFUSED THE INCLUSION OF THE INDUSTRIAL CORRIDOR AND SHERWOOD PARK WITHIN THE EDMONTON BOUNDARY, AND THE REASONS ADVANCED BY THE L.A.B. FOR THIS REFUSAL WILL NO DOUBT BE FULLY ARGUED AND EXPLORED BEFORE YOU

DURING YOUR HEARINGS.

HOWEVER, IT MIGHT BE NOTED THAT SINCE

THAT TIME THE CITY OF EDMONTON HAS NEVER ACHIEVED THE RECOMMENDATIONS OF THE McNALLY COMMISSION REPORT, WHILE THE CITY OF CALGARY HAD SUBSTANTIALLY ATTAINED THOSE RECOMMENDED OBJECTIVES BY 1961.

A FURTHER 15 YEARS OF UNPRECEDENTED GROWTH HAS OCCURRED IN THE EDMONTON REGION SINCE THE LOCAL AUTHORITIES BOARD DECISION IN 1964 WHICH GRANTED THE CITY JURISDICTION OVER THE TOWN OF JASPER PLACE WHILE REFUSING PROPOSED CITY EXPANSION INTO THE URBAN CONCENTRATIONS TO THE EAST IN THE COUNTY OF STRATHCONA.

FOLLOWING THAT DECISION, THE CITY MADE THREE MAJOR ATTEMPTS AT BOUNDARY ADJUSTMENT THROUGH DIRECT APPEAL TO THE PROVINCIAL CABINET.

IN 1967 THE CITY COUNCIL COMMISSIONED DOCTOR ERIC J. HANSON OF THE UNIVERSITY OF ALBERTA TO CONDUCT A STUDY AS TO THE EXTENT OF NEEDED BOUNDARY ADJUSTMENT TO THE THEN CITY. THE BOUNDARY SUGGESTED BY DOCTOR HANSON ON COMPLETION OF HIS STUDY WOULD HAVE INCREASED THE THEN CITY'S SIZE FROM APPROXIMATELY 86 SQUARE MILES TO APPROXIMATELY 292 SQUARE MILES. THE AREA ENCOMPASSED WITHIN THE BOUNDARY PROPOSED BY DOCTOR HANSON BEARS SUBSTANTIAL RESEMBLENCE TO THE AREA PROPOSED IN THE PRESENT APPLICATION WITH THE EXCEPTION OF THE INCLUSION .OF THE WHOLE OF THE COUNTY

OF STRATHCONA.

THE HANSON REPORT WAS APPROVED BY CITY COUNCIL. THE MAYOR AND TWO ALDERMEN WERE DIRECTED TO BRING IT TO THE CABINET FOR CONSIDERATION. NO ACTION WAS TAKEN BY THE GOVERNMENT OF THAT TIME WITH RESPECT TO THE HANSON PROPOSAL.

IN THE FALL OF 1973 THE CITY OF EDMONTON PREPARED A REPORT ENTITLED, "A STATEMENT ON THE FUTURE OF THIS CITY". THE DOCUMENT PROPOSED A BOUNDARY ADJUSTMENT, ONLY SLIGHTLY LESS EXTENSIVE THAN THAT OF THE HANSON REPORT, BUT ONE WHICH WOULD HAVE INCLUDED ST. ALBERT AND SHERWOOD PARK, BUT EXCLUDED NAMAO. THIS REPORT WAS ALSO SUBMITTED TO THE PROVINCIAL CABINET FOR CONSIDERATION AND NECESSARY ACTION.

NO STEPS WERE INITIATED

BY THE PROVINCIAL GOVERNMENT AS A CONSEQUENCE OF THIS REPORT TO UNDERTAKE ANY BOUNDARY ADJUSTMENT OR STUDIES WITH RESPECT TO THE CITY.

FINALLY IN SEPTEMBER OF 1977 THE CITY MADE A FURTHER PROPOSAL TO THE PROVINCIAL CABINET SUGGESTING THAT THE BOUNDARIES OF THE CITY BE EXTENDED IMMEDIATELY TO INCLUDE THE LAND BETWEEN THE EXISTING CITY BOUNDARY AND THE RESTRICTED DEVELOPMENT AREA SURROUNDING THE CITY.

IT WAS ALSO PROPOSED THAT THE

GOVERNMENT CONSTITUTE A BOUNDARY COMMISSION THEREAFTER TO INQUIRE INTO THE NEED FOR FURTHER AND FUTURE BOUNDARY ADJUSTMENTS.

THE GOVERNMENT WAS UNWILLING TO INITIATE ANY ACTION OR RESPONSE TO THE CITY'S PROPOSAL.

IN THE EARLY PART OF 1978 I MADE SEVERAL PERSONAL INQUIRIES OF THE THEN MINISTER OF MUNICIPAL AFFAIRS, MR. DICK JOHNSON, AS TO WHETHER THE GOVERNMENT CONTEMPLATED TAKING THE INITIATIVE ON THE EDMONTON BOUNDARY ISSUE, BUT RECEIVED ADVICE THAT WE WOULD HAVE TO SUBMIT A FORMAL ANNEXATION APPLICATION THROUGH THE LOCAL AUTHORITIES BOARD. FINALLY IN MAY OF 1978 MR. JOHNSON, ON THE FLOOR OF THE LEGISLATURE, MADE STRONG INDICATIONS THAT THE ISSUE OF BOUNDARY ADJUSTMENT WITHIN THE EDMONTON METROPOLITAN REGION SHOULD BE PROCESSED IN THE NORMAL WAY THROUGH THE LOCAL AUTHORITIES BOARD.

IN JUNE OF 1978, CITY COUNCIL APPROVED THE STUDY WHICH CULMINATED IN COUNCIL'S DIRECTION ON MARCH 20th OF THIS YEAR, TO ADVANCE THE PRESENT PETITION TO YOUR BOARD FOR BOUNDARY ADJUSTMENT.

I WOULD LIKE TO DEAL FOR A MOMENT WITH THE REASONS STATED IN THE CITY'S PETITION. THE FIRST TWO ITEMS ARE SPECIFICALLY

RELATED TO THE NEED TO BRING INTO THE CITY, SUFFICIENT LAND TO SATISFY ITS IMMEDIATE AND LONG RANGE NEEDS, SO THAT THE CITY CAN ECONOMICALLY AND EFFICIENTLY PLAN FUTURE GROWTH AND DEVELOPMENT.

IT IS OF GREAT CONCERN TO ME THAT THE CITY IS MORE AND MORE FREQUENTLY FACED WITH SITUATIONS WHERE IT IS INCAPABLE OF ASSISTING SOME OF ITS OLDEST AND MOST SIGNIFICANT INDUSTRIAL ENTERPRISES TO RELOCATE WITHIN THE CITY'S BOUNDARIES.

INDUSTRIAL RELOCATION

IS OCCURRING AT AN ACCELERATED RATE IN EDMONTON, AS THE OLDER INDUSTRIAL CONCERNS ARE REQUIRED TO EXPAND AND MODERNIZE, OR TO SEEK A CHANGE OF ENVIRONMENT IN CONCERT WITH PRESENT DAY NEEDS.

AS AN ILLUSTRATION OF OUR PROBLEM MAY I POINT OUT THAT THE NEW EDMONTON JOURNAL PRINTING PLANT IS, OF NECESSITY, LOCATED IN THE COUNTY OF STRATHCONA; WE ARE HAVING SERIOUS DIFFICULTY ACCOMMODATING RELOCATION OF TWO HEAVY INDUSTRIAL CONCERNS IN SOUTH EDMONTON - CESSCO AND RUSSELL STEEL; AND SEVERAL MEAT INDUSTRY RELATED OPERATIONS HAVE, OR ARE EXPECTED TO HAVE, THIS SAME DIFFICULTY. WHAT IS MOST IMPORTANT TO NOTE IS THAT THE INDUSTRIES I HAVE DESCRIBED WERE, OR ARE, MOST ANXIOUS TO RELOCATE WITHIN THE CITY'S BOUNDARIES, FOR ACCESS TO SUPERIOR

- 10 SERVICES AND FOR THE CONVENIENCE OF THEIR EMPLOYEES.

A CONTINUING INABILITY TO SATISFY THE REQUIREMENTS OF THESE INDUSTRIAL CONCERNS, AS, FOR EXAMPLE, RELOCATION OF CENTRAL CITY RAIL FACILITIES, WILL RESULT IN A CONTINUAL AND SERIOUS EROSION OF EDMONTON'S INDUSTRIAL TAX AND EMPLOYMENT BASES.

THE ADMINISTRATION CONSTANTLY BRING TO MY ATTENTION THEIR INABILITY TO ATTRACT NEW INDUSTRY WITHIN THE CITY BECAUSE OF THE LIMITED CHOICE OF LANDS FOR INDUSTRIAL DEVELOPMENT. FOR SOME TIME NOW, OUR SUPPLY OF LAND FOR HEAVY INDUSTRIAL DEVELOPMENT HAS BEEN EXHAUSTED. YET, IF EDMONTON IS TO REMAIN HEALTHY, AND AS A CONSEQUENCE, CONTRIBUTE TO THE VIGOUR AND ECONOMIC STABILITY OF THE EDMONTON REGION, IT MUST CONTINUE TO ATTRACT AN INDUSTRIAL BASE ALONG WITH THE ANTICIPATED GROWTH IN POPULATION WITHIN ITS BOUNDS.

ALSO - ONE OF THE MAJOR REASONS EXPRESSED IN THE PETITION FOR BOUNDARY ADJUSTMENT WAS - AND I QUOTE: "TO BRING TOGETHER, UNIFY, MERGE, OR INTEGRATE WITH THE CITY OF EDMONTON THOSE PERIPHERAL MUNICIPALITIES OR PARTS THEREOF WHICH DEMONSTRATE AN INTERDEPENDENCE WITH THE CITY FOR GROWTH, DEVELOPMENT AND THE PROVISION OF SOME OR ALL ESSENTIAL MUNICIPAL SERVICES."

THIS ISSUE IS MOST IMPORTANT IN THE DELIBERATIONS OF YOUR BOARD.

AT THE TIME OF THE McNALLY ROYAL COMMISSION, THE TOWN OF ST. ALBERT HAD A POPULATION OF SOME 900 SOULS. POPULATION OF THAT CITY IS 28,000.

TODAY, THE

FIGURES ADVANCED BY OUR

CONSULTANTS INDICATE THAT APPROXIMATELY EIGHTY PERCENT OF ITS EMPLOYED RESIDENTS ARE EMPLOYED WITHIN THE CITY OF EDMONTON.

THE HAMLET OF SHERWOOD PARK, IN ESSENCE HAS THE CHARACTERISTICS OF A CITY OF THE SAME SIZE AS ST. ALBERT AND OUR CONSULTANTS HAVE ESTIMATED THAT APPROXIMATELY 70% OF ITS EMPLOYED RESIDENTS EARN THEIR LIVING WITHIN THE CITY OF EDMONTON.

A STRONG INTERDEPENDENCE OF OUR URBAN COMMUNITIES CREATES THE VERY PROBLEMS AND ISSUES THAT WERE EXPLORED IN 1956 AND ONES WHICH WE HOPE CAN BE RE-EXAMINED AGAIN IN THE LIGHT OF PRESENT CIRCUMSTANCES.

TO THE 80% OF THE WORKERS FROM ST. ALBERT WHO TRAVEL TO THE CITY FOR THEIR EMPLOYMENT, THE CONNECTING TRANSPORTATION CORRIDORS HAVE BEEN LIKENED TO A NIGHTMARE.

FOUR MUNICIPAL JURISDICTIONS

ARE AFFECTED BY THAT TRANSPORTATION PROBLEM NAMELY THE CITY OF EDMONTON, THE MUNICIPAL DISTRICT OF STURGEON, THE COUNTY OF PARKLAND, AND THE CITY OF ST. ALBERT. ON REFLECTING ON THIS

- 12 PROBLEM THE McNALLY ROYAL COMMISSION HAD THIS TO SAY, "IT IS NOTORIOUS ON THIS CONTINENT IN URBAN AREAS GOVERNED BY A MULTIPLICITY OF LOCAL GOVERNMENT AUTHORITIES THAT TOO MANY MUNICIPAL COOKS HAVE SPOILED THE METROPOLITAN BROTH. SURELY IT CANNOT BE SERIOUSLY CONTENDED THAT TWO MUNICIPAL COUNCILS - ONE RURAL AND ONE URBAN - CAN PLAN THE URBAN GROWTH OF THE AREA BETTER THAN THE URBAN COUNCIL ALONE WITH EACH WORKING INDEPENDENTLY OF THE OTHER, AND EACH LOOKING TO ITS OWN INTEREST."

THE CITY CONSIDERS IT MOST IMPORTANT THAT YOUR BOARD RE-EXAMINE THE RELATIONSHIP BETWEEN THE COUNTY OF STRATHCONA AND THE CITY OF EDMONTON WITH REGARD TO THEIR RESPECTIVE ROLES AS PART OF THE EDMONTON METROPOLITAN REGION. THE UNIFICATION MERGER OR INTERGRATION OF THE URBAN CONSTITUENTS WITHIN THE METROPOLITAN AREA IS A PARAMOUNT ISSUE AT THIS TIME.

UNFORTUNATELY, THE PROBLEM WAS RECOGNIZED 24 YEARS AGO BY THE McNALLY COMMISSION.

IN OUTLINING ITS THESIS OR CASE FOR THE

AMALGAMATION OF THIS AREA, THE COMMISSION HAD THIS TO SAY: "AND FINALLY, OF PARAMOUNT IMPORTANCE, AND PERHAPS TRANSCENDING EVEN A COMBINATION OF ALL OTHER REASONS GIVEN, THE COMMISSION HAS REACHED A FIFTH CONCLUSION.

IT IS, THAT IT

WOULD CONSTITUTE NOTHING SHORT OF A METROPOLITAN TRAGEDY TO PERMIT A SECOND CITY TO GROW UP ON EDMONTON'S EAST BOUNDARY COMPLETELY INDEPENDENT OF AND DUPLICATING THE

2 Ibid., Chapter 12, pp. 34 and 35.

- 13 -

EXISTING CITY."

I WOULD LIKE TO QUOTE, IN PART, FROM PAGE 36 OF CHAPTER 12 OF THE McNALLY REPORT - AN EXTRACT WHICH DRAMATICALLY BRINGS TO THE FORE ONE OF THE PRINCIPAL ISSUES WHICH WE WILL PLACE BEFORE YOUR BOARD ... THAT OF THE DEVELOPMENT OF "SATELLITE" OR SUBURBAN COMMUNITIES IMMEDIATELY ON THE CITY'S PERIPHERY EACH, TO A GREATER OR LESSER EXTENT, DEPENDENT UPON THE CENTRAL FACILITIES AND ESSENTIAL PHYSICAL SERVICES PROVIDED BY EDMONTON.

THE McNALLY COMMISSION COMMENTED ON THE POTENTIAL DEVELOPMENT OF SHERWOOD PARK, THEN KNOWN AS CAMPBELLTOWN, BY SAYING: "THIS SPECTRE OF A SECOND CITY BEING ACTIVELY PROMOTED JUST BEYOND EDMONTON'S EASTERN OUTSKIRTS ... IS A NEGATION OF CAREFUL METROPOLITAN PLANNING ... THE ... CAMPBELLTOWN DEVELOPMENT ... CONTEMPLATES A POPULATION OF PERHAPS 6,000 ... LARGER PLANS, IF ULTIMATELY APPROVED, CALL FOR DEVELOPMENT ... WITH A POPULATION OF 30-THOUSAND OR MORE ...

HERE THEN, AT THIS EARLY STAGE ARE THE UMMISTAKABLE SEEDS FOR A SECOND CITY.

IT GOES WITHOUT SAYING THAT AS POPULATION

GROWS, SO ALSO WOULD PROBLEMS OR TRANSPORT ARISE AND ANOTHER SYSTEM OF MUNICIPAL TRANSPORT WOULD APPEAR IN THE AREA. ALL THIS SEEMS IMMINENT ON EDMONTON'S CROWDED EAST BOUNDARY WHICH URGENTLY REQUIRES EXTENSION. FURTHERMORE, THE

3 Ibid., Chapter 12, p. 35.

- 14 COMMISSION DOES NOT THINK IT IS VENTURING INTO THE REALM OF PROPHECY TO SAY THIS WILL HAPPEN IF STEPS ARE NOT TAKEN PROMPTLY BEFORE LASTING HARM HAS BEEN DONE. IF EDMONTON IS CAPABLE OF TAKING CARE OF THE SEWER AND WATER NEEDS OF THE NEW DEVELOPMENT WHAT IS THE JUSTIFICATION FOR IMPOSING TWO MUNICIPAL AUTHORITIES ON THE AREA? IF SUITABLE ARRANGEMENTS WERE NOT MADE BETWEEN THE TWO AUTHORITIES BY NEGOTIATION WHAT WOULD BE THE JUSTIFICATION OF IMPOSING NEW DEBT ON THE AREA FOR THE CONSTRUCTION OF DUPLICATE FACILITIES? COULD NOT THE TRANSPORTATION NEEDS OF THE WHOLE AREA BE INTEGRATED AND TAKEN CARE OF MORE EFFICIENTLY BY ONE AUTHORITY THAN BY CHERISHING THE HOPE THAT TWO COUNCILS WOULD AGREE ON AN INTEGRATED SYSTEM? IN DEFAULT OF AGREEMENT SHOULD THE COST OF TWO SEPARATE SYSTEMS BE IMPOSED ON TAXPAYERS?" 4

MR. CHAIRMAN - MEMBERS OF THE BOARD - THE PROBLEMS SO EMPHATICALLY AND DIRECTLY FORECAST BY THE McNALLY COMMISSION, HAVE BECOME REALITIES WITH EVEN MORE DISTASTEFUL AND UNFORTUNATE CIRCUMSTANCES THAN THOSE IMAGINED.

DR. McNALLY REFERRED TO AND DR. HANSON DEFINED THE COMMUNITIES OF 5 THE EDMONTON METROPOLITAN AREA AS "ONE ECONOMIC AND SOCIAL UNIT". NEVERTHELESS, WE REMAIN FRAGMENTED, AND ARE FACED WITH SEVERAL SERIOUS PROBLEMS OF AN INTERJURISDICTIONAL NATURE.

4. Ibid, Chapter 12, p. 36. 5. Ibid, Chapter 12, p. 5.

- 15 MANY OF THESE PROBLEMS ARISE AS A CONSEQUENCE OF THE CONTINUED EVOLUTION OF COMMUNITIES OF AN URBAN CHARACTER, ON THE DOORSTEP OF THE CENTRAL CITY. THE PROBLEMS ARE EXEMPLIFIED BY PERSISTENT AND UNSETTLED DISPUTES BETWEEN AREA COMMUNITIES OVER PLANNING AND CONTROLS; REVENUE SHARING; TRANSIT SERVICES; INTERMUNICIPAL ROADWAYS; NEW TOWN DEVELOPMENTS AT ENOCH AND ARDROSSAN; THE REGIONAL PLAN AND GROWTH STRATEGY; WATER RATES; FIRE PROTECTION; AND OF COURSE, URBAN BOUNDARY EXPANSION OR "ANNEXATION".

THE MOST DRAMATIC EVIDENCE OF THE DIRECTION IN WHICH THESE PERSISTENT INTER-MUNICIPAL DISPUTES ARE TAKING US, IS REVEALED THROUGH THE EDMONTON REGIONAL UTILITIES STUDY.

IT PROPOSES

CONSTRUCTION OF A REGIONAL SERVICING SYSTEM DEPENDENT ON CENTRAL CITY FACILITIES, UNDER THE DIRECTION OF FIVE NEW WATER BOARDS AND TWO NEW SEWERAGE BOARDS. THE FACT THAT EDMONTON THE PROPOSED PROVIDER AND OPERATOR OF THE MAJOR SERVICING INSTALLATIONS - WILL ONLY BE ACCORDED "MONITORING" OR ADVISORY STATUS IN THE FUNCTIONS OF THESE BOARDS, IS OF MINOR CONSEQUENCE COMPARED TO THE DIFFICULTIES AND INEFFICIENCIES WHICH WILL INEVITABLY ARISE WITH SEVEN ADDITIONAL QUASI-GOVERNMENTAL BODIES INVOLVED WHERE THERE ARE ONLY THREE TODAY.

THE CITY HAS RESPONDED TO THE MINISTER BY REQUESTING THAT THE IMPLEMENTATION OF THE REGIONAL UTILITY STUDY BE WITHHELD INSOFAR AS THE PROPOSED ANNEXED AREA IS CONCERNED, AT LEAST

- 16 UNTIL THIS APPLICATION HAS BEEN DEALT WITH. THERE WILL BE ADDITIONAL COMMENT FURNISHED REGARDING THIS STUDY DURING THE PRESENTATION OF THE CITY'S CASE.

GENTLEMEN, I WOULD BE REMISS IN NOT DRAWING TO YOUR ATTENTION, CERTAIN DEVELOPMENTS WHICH HAVE TAKEN PLACE SINCE THE CITY'S APPLICATION WAS FILED ON MARCH 21st OF THIS YEAR.

FIRSTLY, THE PROVINCIAL CABINET RECENTLY APPROVED TWO ANNEXATION APPLICATIONS AFFECTING THE CITY OF EDMONTON. THESE APPLICATIONS, ADVANCED BY DEVELOPERS, BRING LAND INTO THE CITY ON THE NORTH-EAST AND SOUTH-WEST OF THE CITY, TOTALLING ABOUT 4 1/2 SQUARE MILES.

THESE APPLICATIONS WERE OPPOSED BY THE CITY ON THE PRINCIPLE THAT PIECEMEAL ANNEXATION WAS AN UNREALISTIC APPROACH TO PLANNING GROWTH IN THE REGION. PERHAPS I SHOULD ALSO NOTE THAT, WHILE THE MINISTER OF MUNICIPAL AFFAIRS HAS INDICATED THAT THESE ANNEXATION APPROVALS WERE GIVEN IN ORDER TO EASE HOUSING PRICES AND RESIDENTIAL LAND SUPPLIES, THE CITY IS PHYSICALLY UNABLE TO SERVICE THESE LANDS PRIOR TO 1982.

IT IS THEREFORE

DIFFICULT TO ENVISION THE OCCURRENCE OF SUCH A BENEFICIAL EFFECT. IT IS HOPED HOWEVER THAT THE RESULTS OF THESE HEARINGS WILL ATTAIN THE GOALS THE MINISTER HAS OUTLINED.

- 17 SECONDLY, I AM AWARE THAT THE PROVINCIAL GOVERNMENT IS IN THE PROCESS OF A REVIEW OF REGIONAL PLANNING COMMISSION MEMBERSHIP, AND VOTING STRUCTURES. WE, TOO, ARE CONCERNED WITH THESE, SINCE THE CITY OF EDMONTON IS CURRENTLY ACCORDED 15% OF THE VOTING REPRESENTATION ON THE EDMONTON REGIONAL PLANNING COMMISSION DESPITE THE FACT THAT THE CITY COMPRISES MORE THAN 70% OF THE POPULATION. WERE THE PROVINCE'S REVIEW TO ACCORD EDMONTON MAJORITY REPRESENTATION, HOWEVER, IT WOULD NOT RESOLVE THE ISSUES INVOLVED IN EDMONTON'S ANNEXATION APPLICATION.

RESPONSIBILITY FOR PLANNING AND CONTROL OF GROWTH MUST BE COUPLED WITH RESPONSIBILITIES FOR SERVICING. THE REGIONAL PLANNING COMMISSION HAS BEEN INCAPABLE, AS OUR FURTHER SUBMISSIONS WILL DEMONSTRATE, OF PROVIDING REASONABLE PLANNING AND DEVELOPMENT CONTROL, AND HAS NEITHER THE AUTHORITY NOR EXPERTISE TO ASSUME PHYSICAL SERVICING OR FINANCIAL RESPONSIBILITIES.

FINALLY, MR. CHAIRMAN, THE CITY IS APPRECIATIVE OF THE ACTIONS TAKEN BY THE PROVINCIAL GOVERNMENT, WHEN IT ENACTED SPECIAL LEGISLATION WHICH PERMITTED A SEPARATE PANEL OF YOUR BOARD TO BE STRUCTURED TO HEAR THIS APPLICATION.

- 18 -

THE ONLY REGRET THAT THE CITY HAS TO EXPRESS, IS THAT BECAUSE OF THE PROCESS OF ANNEXATION, WE APPEAR BEFORE YOU IN AN ADVERSARIAL RELATIONSHIP WITH OUR NEIGHBORS.

AS WE HAVE EXPERIENCED THE PROCESS IT HAS WORKED EFFECTIVELY WHERE SMALL PIECEMEAL APPLICATIONS WERE CONCERNED. THE HONOURABLE MINISTER OF MUNICIPAL AFFAIRS, IN THE LEGISLATURE ON MAY 1st, 1978, CANDIDLY ADMITTED THAT THE PROCESS "DOES NOT ADDRESS ITSELF TO OUR URBAN GROWTH CONCERNS."

IT WOULD HAVE BEEN MUCH MORE DESIRABLE FROM THE POINT OF VIEW OF OUR RELATIONS WITH THOSE AFFECTED BY THIS APPLICATION TO HAVE APPEARED AS PARTIES MAKING SUBMISSIONS ON THE ISSUE OF UNIFICATION OF THE DEFINED METROPOLITAN AREA FOR THE PURPOSE OF GOVERNANCE.

THE CITY HAS, HOWEVER, FOLLOWED THE ONLY PATH AVAILABLE WHICH WILL LEAD TO AN ULTIMATE DECISION AS TO THE FUTURE GOVERNMENT AND ADMINISTRATION OF THE DYNAMIC GROWTH WHICH WE EXPERIENCE NOW AND IN THE FUTURE.

- 19 -

I TRUST THAT THE PROCESS WILL PROVIDE, INSOFAR AS THE BOARD IS ABLE, THE FULLEST AND WIDEST PARTICIPATION OF ALL THE PARTIES, PERSONS OR GROUPS WITHIN THE PROPOSED NEW BOUNDARY.

I OFFER TO YOUR BOARD, MR. CHAIRMAN, THE FULL CO-OPERATION OF THE CITY IN ASSISTING YOU IN YOUR INQUIRY INTO A DECISION WHICH WILL DETERMINE FOR THE PEOPLE IN THIS AREA, THE FUTURE OF THEIR CITY - THE FUTURE OF THE ENTIRE METROPOLITAN REGION.

INDEED, MR. CHAIRMAN, THIS MAY BE THE LAST OPPORTUNITY TO COME TO GRIPS WITH OUR PROBLEMS AND BRING ABOUT A LASTING SOLUTION THAT BEST MEETS THE NEEDS OF ALL RESIDENTS OF THE EDMONTON AREA.

THANK YOU.

SUBMISSION TO THE LOCAL AUTHORITIES BOARD BY CHIEF COMMISSIONER D.F. BURROWS CITY OF EDMONTON

SEPTEMBER, 1979

SUBMISSION TO THE LOCAL AUTHORITIES BOARD BY CHIEF COMMISSIONER D.F. BURROWS

MR. CHAIRMAN, MEMBERS OF THE BOARD

As the Chief Executive Officer of the City of Edmonton, I am pleased to have this opportunity to provide this Board with comments on the City's boundary adjustment initiative.

I am

sure the members of the Board recognize the significance of this issue and its far reaching implications on the Edmonton area.

In this regard, Gentlemen, I am hopeful that you will

derive an appreciation of the problems of urbanization confronting the Edmonton area and be prepared to respond positively to the City's proposal.

It will be my intention in this presentation to provide an introduction to the detailed submissions which will be presented in support of the City of Edmonton's request. A request which, as you are aware, recommends that the City of Edmonton be granted jurisdiction over the City of St. Albert, The County of Strathcona, and portions of the County of Parkland and the Municipal District of Sturgeon. More specifically, Mr. Chairman, it is my intention:

to provide a few brief comments on the background to the initiation of this program;

to focus on the problems confronting Edmonton and its immediate area; and

perhaps more importantly, to discuss the implications of these problems on the administration and management of the City.

By way of background, I would note that over the years the City of Edmonton's boundaries have been expanded on an incremental basis to accommodate the growth of this important and rapidly developing urban centre. As well, and as the Mayor noted in his presentation, there have been a number of studies commissioned by the Provincial Government and the City of Edmonton which have recommended that the City's boundaries be expanded in a comprehensive manner. Unfortunately, these numerous studies and submissions have not brought about a boundary adjustment that meets the City's long term land and jurisdictional requirements.

As a result of these failures and the serious inadequacies of the City's current corporate limits, Edmonton City Council on June 13, 1978 authorized the Civic Administration to proceed with the preparation of an annexation application for submission to this Board. This project was initiated under my direction and culminated with the filing of an initiating application on March 21, 1979 and the subsequent filing and distribution of technical support documentation.

Before proceeding to the matter of the development of this proposal, I would be remise if I did not impress upon this Board that I have the utmost confidence in the City's ability to effectively manage and administer the expanded City as proposed in this application.

I have reviewed the work of

the consultants and concur in their conclusions that an integrated metropolitan area would facilitate the long range planning and development of public services, transportation and utility systems, housing and industry. As well, in my view, a unification of the metropolitan community would bring about a degree of private and public sector cooperation that cannot be achieved under the fragmented government system in existence today.

Mr. Chairman, Members of the Board, I am sure you will agree that the outstanding feature of the Edmonton Metropolitan Area is its rapid and sustained growth rate. This rate of growth must be regarded as one of the major factors contributing to the problems confronting Edmonton and its immediate area. While it is not my intention to discuss at length or in any detail all of these problems, I would like to elaborate on certain issues that have been considered and have lead the City Administration and Council to conclude that there is a need for establishing a more appropriate boundary for the City of Edmonton.

Firstly, and of the utmost importance, the City needs additional land. This particular issue has been fully studied and explored for the City by the consulting firm of Mackenzie Spencer and Associates.

The Consultant will discuss in

detail his findings later in these presentations. However, I believe that it is worth noting that this analysis clearly demonstrates that the City does not have an adequate supply of land for projected development purposes.

The City's planning process in developing areas of the City is based upon an adherance to comprehensively formulated residential and industrial area structure plans. As such, the City presently has 7 residential and 3 industrial outlined plans designated to accommodate growth into the future.

An examination of the population and development capacities of the developing residential areas in relation to the City's expected share of subregional population growth indicates that the City is facing a shortage of land. This shortfall places the City in a serious dilemma. Land and housing prices are escalating at an alarming rate, consumer choice in housing type and location will in the near future become constrained and competition in the development sector is restricted.

As well, the unsatisfied demand for industrial land beyond the supply within the City limits is even more pronounced. The City, for example, is currently unable to meet the demands for heavy industrial locations in established industrial areas. Moreover, and as noted by the Mayor in his comments, the Administration is having difficulty in facilitating the relocation of existing industries which, for various reasons, wish to move to new sites within the corporate limits. This situation in turn reduces the City's ability to compete for its fair share of industrial development with adjacent jurisdictions and is beginning to result in an erosion of the City's tax base.

The land shortage confronting the City is clearly demonstrated by the considerable pressure from both individual land owners and the development industry for City expansion into the metropolitan area. This is perhaps best reflected by the rash of individual annexation applications submitted since 1975.

In addition to the northwest proposal recently refused by the Local Authorities Board, three annexation submissions have been approved. These include the 1975 approval of a portion of the Northwest Industrial Area and the 1979 approval of the lands in the northeast between the City boundary and the Restricted Development Area and in a segment of the Kaskitayo Triangle to the south. As well, there are currently two substantial applications which are either awaiting consideration by the Board or pending decision. These involve lands in the St. Albert/Edmonton corridor and to the west of the City adjacent to the Enoch Reserve.

The City has frequently maintained that a series of what can only be considered "piecemeal" annexations is not the optimum means by which a municipality should grow.

It is extremely

difficult for the City in the absence of long term boundary certainty to appropriately size and extend public facilities such as roadways, piped services and schools.

Accordingly, it is the City's position that annexation should occur as part of a comprehensive adjustment of boundaries in order to facilitate the sound and effective development of the whole metropolitan area.

By failing to deal with the

comprehensive approach - Mr. Chairman - the Province has put the City and private property owners and developers in a situation where annexations are considered and proposed incrementally and therefore, independently from the broader perspective.

The second major issue I wish to comment on relates to the political and administrative fragmentation that characterizes the Edmonton area. This particular topic has been considered by a number of the City's consultants and will be discussed at some length during subsequent phases of the City's presentations. However, I would like to take this opportunity to provide some comments on the implications of this particular issue on the management of the City's operations and the orderly development of the metropolitan community.

City consultants will be demonstrating that despite the interdependant nature of the growth and development of the Edmonton area, government decision making is badly fragmented among several dozen agencies. In this context, individual municipalities continue to direct attention to the attainment of development and assessment in their own self interest. Examples of the resulting pressure are almost too numerous to mention but include such proposals as the new town at Ardrossan, the Enoch Band Development Proposal, the rapid growth and expansion of the two dormitory suburbs of St. Albert and Sherwood Park and the proliferation of industrial development on the City's immediate periphery.

The incremental approval of these fringe developments creates a myriad of problems.

Principle among these problems from

the metropolitan perspective are urban sprawl, land use conflict, the costly and inadequate provision of essential urban services, the emergence of a less than effective and disruptive transportation system and the inefficient utilization of natural resources particularly land and energy.

From the City's perspective, this pattern of development creates problems when the City inherits this fringe development when growth in the City results in the annexation of these lands. In these instances, the subdivision and development pattern that has occurred makes it difficult to assemble land and rationalize the development on the ground with the City's objectives for expansion. The Civic Administration is currently facing these problems in the Kennedale Ravine and Bergman Area within the northeast quadrant of the City. As well, costly infrastructure improvements by the City are often required when these areas are annexed. This occurs because the rural and smaller municipalities generally provide a level of service which is just adequate to accommodate the development. The Jasper Place annexation provides the best example of this situation.

In addition to these problems, peripheral urban concentrations create other difficulties for the City.

For example,

it is becoming increasingly difficult to provide acceptable transportation connections to these fringe area developments. This is clearly demonstrated by the horrendous transportation situation that currently exists in the northwest because of the magnitude of commuter flows from St. Albert.

Also, I would point out to the Board, that the City is constantly pressured to extend utility services to adjacent areas. In response to these demands and the evolving poor settlement pattern, City Council found it necesary in 1973 to restrict utility service extensions beyond the City's boundaries pending resolution of the annexation and amalgamation question.

Notwithstanding this resolution, the City has found it necessary to extend utility services to certain fringe developments such as the Evergreen Mobile Home Park in the northeast.

In this instance, the development was allowed to

proceed in the absence of an acceptable water supply and as a result the City had to assume responsibility. As well, the Edmonton Regional Planning Commission has over the years continued to approve individual industrial rezoning and subdivision applications immediately adjacent to the City of Edmonton along Highway 16 in the absence of a comprehensive resolution to the storm drainage problems confronting development in this area. As a result, the City storm drainage system in the west is indirectly being required because of the existing drainage pattern to accommodate storm runoff generated by the industrial development in this particular area.

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Although the numerous problems in existence in the fragmented area are well known to each of the affected municipalities, an integrated planning accord has never been achieved. Effective long range planning, taken in cognizance of the transboundary implications of these matters has accordingly never been undertaken.

In view of the history of the development

of the area, to expect otherwise is wishful thinking.

Mr. Chairman, I would also point out that local government fragmentation has created other problems which stem directly from the proliferation of interjurisdictional or crossjurisdictional agreements which are, from an administrative perspective, of considerable concern.

A check list of the main areas in which joint agreements have been signed is as follows.

In the area of fire protection

the City Fire Department provides fire fighting assistance on a backup basis to St. Albert, the Town of Leduc, the County of Strathcona, the County of Parkland, the Municipal District of Sturgeon and Alberta Hospital.

Presently, the

City of St. Albert and the Hamlet of Sherwood Park are dependent upon joint agreements with the City of Edmonton for public transit service. As well, significant levels of intermunicipal vehicular traffic forces the construction and maintenance of arterial roadways across local jurisdictional di 0

lines.

Such projects require agreement by contract among

the municipal parties concerned as well as with the Province of Alberta. Finally, there are a number of utility distribution

arrangements in effect within the area.

With respect to the

provision of water, the City of Edmonton supplies water to St. Albert, the County of Strathcona (for Sherwood Park) and to three water boards.

Concerning sewage, the City maintains

a joint agreement to wholesale sewage services to the County

of Strathcona for Sherwood Park and also has entered into separate contracts to provide sewage disposal service for C.F.B. Namao, Alberta Hospital and two other peripheral developments including the Inland Cement facility and the Evergree Mobile Home Park.

From an administrative perspective, it is neither desirable nor economical to provide essential services within the inner metropolitan area or functional City in this manner. The bi-lateral nature of this process creates government based upon bargaining and negotiation which is very costly and inefficient. There is no single government capable of planning the orderly development of the urban area and of ensuring that essential urban related services are designed appropriately. In this situation, it is impossible to coordinate administrative and policy decisions and, as a result, government efficiency suffers. I would also note that in this situation service levels vary among municipalities and no one authority can be held responsible for the general condition of the community.

More recently, an aspect of this regional relationship has emerged with the release by the Department of Environment of the Edmonton Regional Utilities Study. This particular Study was commissioned by the Provincial Government and is intended to determine the most appropriate way to develop the water supply and sewage disposal facilities for an area somewhat larger than the Edmonton Subregion. This Study recommends that the 3 existing local water boards be strengthen and extended and 2 new water boards be established. Additionally, two sewage boards are proposed to be established. These jurisidictions are recommended to be established by statute through the establishment of Administrative Boards which will own, manage, and distribute these services to the region in question.

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lir I

mentioned previously, it is presently difficulty enough

for the City to manage its relationship through a variety of agencies but to further compound this difficulty with 7 boards who in turn will be answerable to other agencies of government is totally unacceptable to the City of Edmonton. The City's answer to this is that the urban and urbanizing portion of the Edmonton Metropolitan Area should for management purposes come under one political and administrative jurisdiction The rationale in support of this proposition will be extensively explored in the City's case by a number of its consultants. However, I would like to submit at this juncture that the merger of the City of Edmonton with the areas subject to this annexation application would more effectively provide for future needs, ensure service integration and avoid overlap and wasteful competition.

In addition to the fragmented approach to government decision making as outlined in my previous comments, the general ineffectiveness of the Edmonton Regional Planning Commission must be considered. The Board is I am sure aware that the Commission has been granted, pursuant to the Planning Act, the responsibility to manage and direct growth within the Edmonton Region. However, I would submit that as a regional planning agency the Commission has limited utility primarily because of its current political structure and its limited mandate over the implementation of the plans it prepares. As a result, and as I discussed earlier, the regional planning authority has not eliminated undesirable competition among municipalities for industrial assessment nor has it exercised much restraint in allowing substandard and premature development to occur immediately adjacent to the City's current boundaries.

This is well illustrated by the development pattern proposed in the draft Regional Plan currently under consideration by the Edmonton Regional Planning Commission. This Plan purports to serve the dual function of providing both an inventory of population, land use and economic information and a long range development guide. As an inventory, the document provides useful data for future planning activities by both the public and private sectors. Also, as a development guide, the Plan provides worthwhile direction in the more rural portions of the Edmonton Region, particularly with respect to the conservation of natural areas and the future development of recreational areas.

However, as a long range

development guide for the more immediate Edmonton area where development pressures and intermunicipal problems are the most severe, the Plan is totally inadequate and represents nothing more than an attempt to institutionalize the uncoordinate, costly, and ineffective land use pattern that characterizes the development that has occurred peripherial to the City of Edmonton.

In most respects, the proposed plan perpetuates

the status quo and, in certain significant instances further aggrevates the existing metropolitan problems that I discussed earlier.

The cumbersome and restrictive nature of the Edmonton Rgional Planning Commission's regional zoning process is also creating critical problems for both the City of Edmonton and the development industry. These problems for the most part stem from the unwarranted amount of time required to affect amendments to the Edmonton Regional Plan which is prejudicing attempts to carry out rationale planning and the orderly and economical phasing of development.

For example, it took the

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City an appeal to the Provincial Planning Board 14 months to effect a rezoning within the Hermitage West neighbourhood in the northeast Edmonton.

Similarily, 5 months were required

to obtain the appropriate regional zoning within the inner City neighbourhood of Riverdale.

In concluding my remarks on this issue, I would submit that it is clear that there are serious flaws in the regional planning commission approach to managing the urban growth which is generated by the City of Edmonton. Clearly, the Commission is less than responsive to City needs and requirements. Moreover, far from being an effective coordinating agency, the Edmonton Regional Planning Commission has proven itself to be the development instrument of the municipal governments adjacent to the City.

Mr. Chairman - the financial implications of the annexation application have been extensively reviewed on a joint basis by the firms of Hu Harries and Associates and P.S. Ross and Partners.

The conclusions of this assessment will be presented

in some detail by these consultants during the course of these hearings

However, there are two particular issues

which I believe warrant comment at this time.

I would submit that the gain or loss of tax revenue alone is not a sufficient criteria for determining whether to grant or deny annexation. The financial effects of annexation, as is the case with all other factors, must be considered in light of the best interest of all parties affected by the boundary proposal. However, what is critical is whether or not the City is financially able to assume the obligations that must be incurred as a consequence of the annexation. In this regard, I wish to go on record as supporting the

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financial analysis completed by the City's consultants which adequately demonstrates the City's financial capability to assume the local government responsibilities for the expanded area under consideration.

In fact, it is clear from the

analysis that there will be a number of advantages from a financial perspective associated with the unification of the City and the area proposed for annexation.

The second issue that I would like to raise while I am on this topic relates to the question of fiscal equity within the Edmonton area. A number of the City consultants will demonstrate that the Edmonton Metropolitan Area is in fact one community but within this community there are grave inequalities of sources of revenue, weight of taxation, of expenditures per capita and of the provision of civic services. While these in themselves pose serious problems for the long term development of the area, what is of particular concern to the Adminisration is that increasingly the City finds that many of its operating and capital expenditures are driven by subregional demand.

Examples are common and relate to the provision of police service, public housing, soical services for the disadvantaged, the development of recreational and cultural facilities and arterial roadway construction and operation to accommodate commuter flows to the City core.

It is unjust that the

burden of metropolitan expansion should fall so inequitably on the City of Edmonton. Moreover, from an administrative perspective, this creates difficulties in financial management for the City because we have no control over these outside demands. As well, the City's ability to provide appropriate service levels to its own residents is eroded due to the commitment of financial resources in response to regional pressures.

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In summing up the arguments for a unitary system operating within an expanded boundary outlined in the city's proposal, I would like to register the following comments.

The existence of fragmented and divided authority among jurisdictions leads to a range of problems related to the provision of services, the inequitable exploitation of the industrial tax base and the inability to plan for future growth in a comprehensive and orderly fashion. The solution to these existing difficulties by implementing a two-tier system of government or a single purpose planning authority is not viable or advisable in the Edmonton area. These alternative approaches are simply stop-gap measures which result in the creation of another level of government when what is needed in the Edmonton area is less rather than more government. Accordingly, I would submit that a fully integrated and unified form of government represents a positive and constructive solution for the desired alleviation of the problems confronting the Edmonton area.

It is on this basis - 11r. *Chairman and Gentlemen - that I respectfully request - y&ur favorable consideration of the City's initiatives.

Thank You.

A STATEMENT TO THE ALBERTA LOCAL AUTHORITIES BOARD ON THE ORGANIZATION, CONDUCT AND CONCLUSIONS OF THE EDMONTON ANNEXATION APPLICATION

Prepared by: David R. Podmore Director Edmonton Annexation Appliction

September 1979

"The problems which have been created by large scale developments in the region around Edmonton are immense. It is the opinion of the Forum that the City of Edmonton must be accorded adequate influence over development in its region. The most desirable way to achieve the necessary influence, the Forum suggests, is within a unitary system of local government for the metropolitan region.

This would mean the amalgamation of Edmonton City with some rural

and urban areas in the Edmonton region.

The consequence of not following

this course of action is that a regional system of government will inevitably be established. This system has not been shown to be effective."

Alberta Land Use Report, Province of Alberta, 1976, p. xxiv.

TABLE OF CONTENTS

PAGE INTRODUCTION BACKGROUND TO THE APPLICATION

THE MCNALLY COMMISSION - 1956

GROWTH EXPERIENCES - CALGARY AND EDMONTON

BEVERLY AND JASPER PLACE ADDED

THE HANSON REPORT - 1968

A STATEMENT OF THE FUTURE OF THIS CITY - 1973

RESTRICTED DEVELOPMENT AREA ANNEXATION PROPOSAL 1977

OTHER BOUNDARY STUDIES

THE EDMONTON ANNEXATION PROJECT

RELATIONSHIP OF ANNEXATION TO OTHER MUNICIPAL PROGRAMS

BOUNDARY SELECTION CRITERIA

BOUNDARY REVIEW AND gATIONALE

THE EXCLUSION OF FT. SASKATCHEWAN

OBJECTIVES OF THE APPLICATION

CONCLUDING REMARKS

FOOTNOTES

BIBLIOGRAPHY

APPENDIX A - A GUIDE TO VISUALS USED IN PRESENTATION OF A STATEMENT BY DAVID R. PODMORE TO THE LOCAL AUTHORITIES BOARD, SEPTEMBER 11, 1979 (Distributed Separately)

1. MR. CHAIRMAN, MEMBERS OF THE BOARD, I AM PLEASED TO HAVE THIS OPPORTUNITY TO ELABORATE ON THE BACKGROUND TO A MOST AMBITIOUS STUDY WITH WHICH I HAVE ASSOCIATED FOR MORE THAN 15 MONTHS, IN THE CAPACITY OF PROJECT DIRECTOR. BEFORE I BEGIN TO DESCRIBE THE EVOLUTION AND FINDINGS OF THE EDMONTON ANNEXATION PROJECT HOWEVER, I WOULD LIKE TO PROVIDE A FEW HISTORICAL REMARKS. (Slide 1)

INTRODUCTION

FOR ALMOST A QUARTER OF A CENTURY THE CITY OF EDMONTON HAS BEEN ENDEAVOURING TO BRING ABOUT A MAJOR RATIONALIZATION OF MUNICIPAL BOUNDARIES IN THE EDMONTON METROPOLITAN AREA.

THE CITY'S EARLY INITIATIVES ON BOUNDARY AND LOCAL

GOVERNMENT RATIONALIZATION WERE, IN LARGE PART, CATALYZED BY THE RECOMMENDATIONS OF THE ROYAL COMMISSION ON THE METROPOLITAN DEVELOPMENT OF EDMONTON AND CALGARY1, RELEASED BY THE PROVINCIAL GOVERNMENT IN 1956. SINCE 1956, EDMONTON CITY COUNCIL HAS MADE NUMEROUS SUBMISSIONS TO THE PROVINCIAL GOVERNMENT URGING THAT KEY CONCEPTS OF THE ROYAL COMMISSION OR "MCNALLY REPORT", BE ACCEPTED AND IMPLEMENTED. (Slide 2)

MORE SPECIFICALLY, THE CITY OF EDMONTON HAS TRADITIONALLY SUBSCRIBED TO THE PRINCIPLE OF UNITARY LOCAL GOVERNMENT FOR THE ENTIRE METROPOLITAN AREA, SO CLEARLY ENUNCIATED IN THE "MCNALLY COMMISSION" REPORT, AND SUBSEQUENTLY 3 2 EXPANDED IN THE "HANSON REPORT", AND THE FUTURE OF THIS CITY REPORT.

DESPITE THE QUITE CONSIDERABLE EFFORTS OF THE CITY AFTER 1956, NO THOROUGH INVESTIGATION OF PROPOSALS FOR UNITARY GOVERNMENT AND BOUNDARY RATIONALIZATION IN THE EDMONTON METROPOLITAN AREA HAS SINCE BEEN UNDERTAKEN BY THE PROVINCIAL GOVERNMENT. ULTIMATELY, AS A CONSEQUENCE OF A SUBMISSION TO THE PROVINCIAL 4 CABINET IN SEPTEMBER, 1977 THE CITY OF EDMONTON WAS DIRECTED IN MAY, 1978 TO PURSUE ITS CONCERNS ON BOUNDARY ADJUSTMENT AND LOCAL GOVERNMENT ORGANIZATION THROUGH THE PROCESS OF ANNEXATION AND HEARINGS BEFORE THE ALBERTA LOCAL AUTHORITIES BOARD.

5 (Slides, 3, 4, 5)

UNLIKE MANY OF THE EARLIER SUBMISSIONS TO THE PROVINCIAL GOVERNMENT URGING THE ESTABLISHMENT OF UNITARY LOCAL GOVERNMENT TO RESOLVE INTER-JURISDICTIONAL PLANNING, SERVICING, DEVELOPMENT CONTROL, FINANCING AND TRANSPORTATION PROBLEMS, THE CITY'S 1977 BRIEF WAS BASED ON A REQUEST FOR URGENT ACTION TO RESOLVE SHORT AND MEDIUM RANGE LAND SUPPLY AND SERVICING REQUIREMENTS. WHAT IS ALSO NOT COMMONLY ACKNOWLEDGED IS THAT THE CITY, IN ITS 1977 SUBMISSION, PROPOSED THE ESTABLISHMENT OF A PUBLIC INQUIRY COMMISSION TO EXAMINE AND RESOLVE LONGER-TERM JURISDICTIONAL ISSUES--POSSIBLY BUT NOT NECESSARILY THROUGH A REORGANIZATION OF LOCAL GOVERNMENT.

AS A RESULT OF THE GOVERNMENT'S DIRECTIVES TO PURSUE BOUNDARY ADJUSTMENT THROUGH THE LOCAL AUTHORITIES BOARD, THE CITY WAS PLACED IN A VERY UNUSUAL AND DIFFICULT CIRCUMSTANCE. ONE OF THE MAJOR HINDERANCES TO EFFECTIVE LONG RANGE PLANNING AND SERVICING SYSTEM DEVELOPMENT IN THE CITY OF EDMONTON HAS BEEN THE CONTINUED PIECEMEAL APPROACH TOWARDS THE ANNEXATION OF ADDITIONAL LANDS TO 6 SATISFY RESIDENTIAL AND INDUSTRIAL REQUIREMENTS . THE ANNEXATION PROCESS IS, BY NATURE, A LENGTHY AND EXPENSIVE UNDERTAKING, ORIENTED TOWARDS THE FRAGMENTED ADDITION OF LANDS FROM ANOTHER MUNICIPALITY TO A SECOND OR APPLICANT

3. MUNICIPALITY'S JURISDICTION.

THE PROCESS DOES NOT APPEAR TO HAVE BEEN

ESTABLISHED TO REVIEW THE MERITS OF MAJOR BOUNDARY ADJUSTMENT, POSSIBLY INVOLVING TENS OF THOUSANDS OF ACRES AND THE COMPLETE ABSORPTION OF ONE OR MORE SIZEABLE MUNICIPALITIES BY ANOTHER JURISDICTION, THEREBY NECESSITATING THE RESTRUCTURING OF LOCAL GOVERNMENT AND POLITICAL REPRESENTATIVE SYSTEMS. (Slide 6)

BACKGROUND TO THE APPLICATION

RECOGNITION OF THE UNIQUE FEATURES OF THE ANNEXATION PROCESS, AND OF THE URGENT REQUIREMENT FOR MORE EFFECTIVE LONG RANGE PLANNING AND DEVELOPMENT CONTROL IN THE EDMONTON METROPOLITAN AREA DICTATED THAT THE CITY'S APPROACH TO THE LOCAL AUTHORITIES BOARD BE CAREFULLY, OBJECTIVELY AND PROFESSIONALLY ASSEMBLED.

FURTHER, THE PROCESS NECESSITATED THAT THE INTERESTS OF ALL PARTIES--NOT EXCLUSIVELY THE APPLICANTS--BE FULLY EXAMINED AND EVALUATED PRIOR TO ANY IRREVOCABLE ACTIONS OR INITIATIVES BEING LAUNCHED. IN THE CASE OF THE CITY OF EDMONTON'S ANNEXATION DELIBERATIONS--WHICH COMMENCED UNDER MY DIRECTION AND COUNCIL'S INSTRUCTIONS IN LATE MAY, 1978--THE NECESSITY TO ASCERTAIN THE POTENTIAL IMPACT OF ANY BOUNDARY ADJUSTMENT ON OTHER JURISDICTIONS AND PRIVATE INTERESTS BEFORE INITIATING ACTIONS TO THE ALBERTA LOCAL AUTHORITIES BOARD, WAS QUICKLY CONFIRM). LIKEWISE, IT WAS ALSO RECOGNIZED AT THE OUTSET OF THE ANNEXATION DISCUSSIONS THAT, PARTICULARLY GIVEN THE CITY'S PREVIOUS UNSATISFACTORY EXPERIENCES WITH FRAGMENTAL OR PIECEMEAL ANNEXATION, A BOUNDARY ADJUSTMENT SUFFICIENT TO SATISFY LONGER TERM LAND PLANNING, SERVICING, AND DEVELOPMENT REQUIREMENTS WOULD BE THE MINIMUM ADJUSTMENT ACCEPTABLE FOR

CONSIDERATION IN AN APPLICATION TO THE LOCAL AUTHORITIES BOARD.

THESE, IN

ESSENCE, WERE THE ONLY RESTRICTIONS OR LIMITATIONS PLACED BY EDMONTON CITY 7 COUNCIL ON THE EDMONTON ANNEXATION PROJECT, INITIATED ON JUNE 13, 1978.

DETAILS ON THE ORGANIZATION, PROCESS, AND SCOPE OF THE EDMONTON ANNEXATION PROJECT WILL BE PROVIDED SHORTLY. NEVERTHELESS, I THINK THAT IT IS IMPORTANT THAT I EMPHASIZE AT THE OUTSET OF THIS PROJECT EDMONTON CITY COUNCIL EXPRESSED NEITHER ANY PRECONCEIVED COMMITMENT TO A SPECIFIC ANNEXATION BOUNDARY, NOR FIXED VIEWS ON FUTURE GOVERNMENT STRUCTURE SHOULD RESTRUCTURING BE NECESSARY, AS A CONSEQUENCE OF THE ANNEXATION BOUNDARY ULTIMATELY SELECTED BY THE STUDY. RATHER, FROM THE OUTSET CITY COUNCIL CONTINUALLY STRESSED THE NECESSITY THAT AN OBJECTIVE, INDEPENDENT EVALUATION OF BOUNDARY REQUIREMENTS BE UNDERTAKEN, AND PRESENTED FOR THEIR CONSIDERATION AND POSSIBLE RATIFICATION AS THE BASIS OF AN APPLICATION TO THE LOCAL AUTHORITIES BOARD FOR ANNEXATION OF LANDS TO THE CITY'S JURISDICTION.

ALTERNATIVE ANNEXATION BOUNDARIES, INCLUDING THE

BOUNDARY ACCEPTED BY COUNCIL ON MARCH 20, 1979 WERE, OF COURSE, DISCUSSED WITH COUNCIL ON A NUMBER OF OCCASIONS AFTER THE PROJECT'S COMMENCEMENT, BUT NO COMMITMENT WAS MADE TO THE PREFERRED BOUNDARY IN ADVANCE OF A FULL REVIEW OF THE ADVANTAGES AND DISADVANTAGES OF EACH BOUNDARY ON ALL AFFECTED JURISDICTIONS. (Slide 7)

THE MCNALLY COMMISSION - 1956

AS THE DIRECTOR OF THE EDMONTON ANNEXATION PROJECT I ADOPTED THE VIEW THAT ANY MAJOR INVESTIGATION SHOULD BE INITIATED AND CONDUCTED IN FULL KNOWLEDGE OF WHAT HAS PREVIOUSLY OCCURRED--PARTICULARLY THE RESULTS OF EARLIER STUDIES OR

INQUIRIES ON THE SAME PROBLEM. SO THEN IT WAS MY OPINION, THAT AN EXAMINATION OF ANNEXATION ALTERNATIVES AVAILABLE TO THE CITY OF EDMONTON SHOULD BE CONDUCTED IN RECOGNITION OF THE NUMEROUS BOUNDARY AND GOVERNMENT STRUCTURE COMMISSIONS, INQUIRIES AND INVESTIGATIONS WHICH PRECEDED THE EDMONTON ANNEXATION PROJECT.

UNDER THE DIRECTION OF MY OFFICE, CONSULTANTS AND STAFF ASSIGNED TO THE EDMONTON ANNEXATION PROJECT HAVE DRAWN UPON THE FINDINGS AND SUGGESTIONS OF SEVERAL PREVIOUS EXAMINATIONS OF BOUNDARY AND GOVERNMENT STRUCTURE REQUIREMENTS FOR THE EDMONTON METROPOLITAN AREA. THESE STUDIES HAVE INCLUDED REPORTS ON THE EXPERIENCES OF CITIES ACROSS CANADA AND THE UNITED STATES, BUT OUR ATTENTION HAS, OF COURSE, FOCUSSED PRIMARILY ON AN EXAMINATION OF PREVIOUS STUDIES AND REPORTS PERTAINING TO THE EDMONTON SITUATION DIRECTLY. I WOULD, THEREFORE LIKE TO PROVIDE YOU WITH A BRIEF SYNOPSIS OF THE MAJOR WORKS EXAMINED DURING OUR INVESTIGATION.

THE FIRST MAJOR REPORT TO BE EXAMINED IN ANY STUDY OF EDMONTON AREA BOUNDARY PROBLEMS SHOULD IN MY OPINION BE THE ROYAL COMMISSION ON THE METROPOLITAN DEVELOPMENT OF EDMONTON AND CALGARY, PUBLISHED IN 1956, AND NOW MORE COMMONLY KNOWN AS THE "MCNALLY REPORT".

THE MCNALLY PUBLIC INQUIRY COMMISSION WAS

APPOINTED IN 1954 TO STUDY PROBLEMS RELATED TO METROPOLITAN DEVELOPMENT IN EDMONTON AND CALGARY, AND TO REPORT TO THE PROVINCIAL GOVERNMENT ON FUTURE ACTIONS RESPECTING GOVERNMENT STRUCTURE AND BOUNDARIES OF BOTH METROPOLITAN AREAS. DR. MCNALLY, CHAIRMAN OF THE COMMISSION, PRESENTED THE COMMISSION'S FINDINGS IN 1956. MOST IMPORTANT FOR OUR PURPOSES TODAY, HOWEVER, IT SHOULD BE NOTED THAT THE COMMISSION RECOMMENDED THAT EDMONTON'S BOUNDARIES BE EXPANDED SUBSTANTIALLY TO INCLUDE LARGE TRACTS OF LAND SURROUNDING THE

EDMONTON METROPOLITAN AREA.

IF ACCEPTED, THE MCNALLY COMMISSION BOUNDARY

PROPOSAL WOULD HAVE INCREASED THE AREA OF THE CITY OF EDMONTON FROM 43.91 SQUARE MILES TO 112.02 SQUARE MILES. (Slides 8, 9) I WOULD LIKE TO PROVIDE YOU WITH SOME FURTHER BACKGROUND ON THE COMMISSION'S WHICH IS, I FEEL, USEFUL TO OUR DISCUSSIONS ON EDMONTON'S ANNEXATION APPLICTION.

THE COMMISSION'S TERMS OF REFERENCE WERE VERY BROAD AND INCLUDED THE STUDY OF FRINGE COMMUNITIES, BOUNDARIES, FORMS OF GOVERNMENT, AND THE NEED FOR MUNICIPAL AMALGAMATION.

AS A RESULT OF ITS RESEARCH EFFORTS THE COMMISSION ESTABISHED A NUMBER OF 8 PRINCIPLES ON WHICH THE RECOMMENDED BOUNDARIES WERE DRAWN. THESE PRINCIPLES MAY BE SUMMARIZED AS FOLLOWS:

ECONOMIC BASE:

EACH METROPOLITAN AREA WAS DETERMINED TO BE AN

ECONOMIC UNIT DEPENDENT UPON A COMMON ECONOMIC BASE DOMINATED BY ACTIVITIES OF THE CENTRAL CITY. THE COMMISSION ESTABLISHED THAT SUCH ECONOMIC UNITS SHOULD BE ESTABLISHED UNDER ONE LOCAL GOVERNMENT UNIT;

PLANNING:

THE COMMISSION DIRECTED CONSIDERABLE ATTENTION TO A

DETERMINATION OF LAND RDQUIREMENTS OF MAJOR MUNICIPALITIES AND CONCLUDED BY RECOMMENDING THAT SUFFICIENT SPACE FOR PLANNED EXPANSION SHOULD BE PROVIDED FOR A MINIMUM PERIOD OF FIFTEEN YEARS;

EFFICIENCY:

THE COMMISSION ADVISED THAT THE ECONOMY OF UTILITY

EXTENSIONS AND THE TREND OF DEVELOPMENT SHOULD BE TAKEN INTO ACCOUNT IN DETERMINING THE DIRECTION AND EXTENT OF BOUNDARY EXPANSION;

TAXATION:

THE ROYAL COMMISSION WAS CONCERNED ABOUT TEE DEVELOP-

MENT OF INDUSTRIAL CONCERNS ON THE PERIPHERY OF ALBERTA'S TWO MAJOR METROPOLITAN AREAS. IN ITS REPORT THE COMMISSION ADVISED THE PROVINCIAL GOVERNMENT THAT LOCAL TAX REVENUES FROM INDUSTRY SHOULD GO TO THE MUNICIPAL AUTHORITY WHICH BEARS THE MAJOR PUBLIC OR SOCIAL COST OF THE INDUSTRY AND ITS EMPLOYEES;

SCHOOL BOUNDARIES:

THE COMMISSION URGED THAT SCHOOL AND MUNICIPAL

BOUNDARIES COINCIDE WHEREVER POSSIBLE;

INDUSTRIAL GROWTH:

DR. MCNALLY AND HIS ASSOCIATES CONCLUDED THAT

FOR PLANNING AND DEVELOPMENT CONTROL PURPOSES INDUSTRIAL GROWTH ADJOINING THE CITY SHOULD BE BROUGHT WITHIN THE CITY.

THE

COMMISSION OBSERVED THAT THE CITY IS THE MUNICIPAL UNIT MOST CAPABLE TO GOVERN AND CONTROL PERIPHERAL GROWTH AND SATISFY RISING EXPECTATIONS AND REQUIREMENTS OVER TIME;

URBAN CHARACTERISTICS: HAVE TAKEN ON

WHERE AREAS IMMEDIATELY ADJOINING THE CITY

S TRONG URBAN CHARACTERISTICS THE INQUIRY

COMMISSIONERS RECOMMENDED THAT THE AREAS BE BROUGHT UNDER THE AEGIS OF THE CITY PLANNING DEPARTMENT ESPECIALLY TO FACILITATE EFFECTIVE OVERALL, LONG RANGE PLANNING, DEVELOPMENT CONTROL AN EFFICIENT SERVICING; AND

DUAL CITIES:

WITH CONSIDERABLE FORESIGHT THE COMMISSION REPORTED

THAT IT WOULD BE A METROPOLITAN TRAGEDY TO ALLOW ANOTHER INDEPENDENT CITY TO GROW ON EDMONTON'S EAST BOUNDARY THUS CREATING IN THE AREA THE PROBLEMS WHICH HAVE PLAGUED OLDER AND LARGER METROPOLITAN AREAS ACROSS CANADA, THE UNITED STATES, AND MANY CENTRES IN EUROPE. (Slides 10, 11) IN SUMMARY, THE RECOMMENDATIONS OF THE ROYAL COMMISSION WERE NEVER ACTED UPON BY THE PROVINCIAL GOVERNMENT FOR EDMONTON.

AS A CONSEQUENCE, THE CITY

CONTINUED TO GROW VIA A PROCESS OF PIECEMEAL ANNEXATIONS FROM 1956 TO THE PRESENT DAY. NEVERTHELESS, AS WE WILL DEMONSTRATE LATER IN OUR PRESENTATIONS THE PRINCIPLES ESTABLISHED BY THE MCNALLY COMMISSION ARE EQUALLY AS VALID TODAY, AS THEY WERE IN 1956.

PERHAPS AS A CONSEQUENCE, IN PART, OF THE MCNALLY COMMISSION REPORT REFERENCES TO THE RELATIVE SIZE AND GROWTH OF ALBERTA'S TWO MAJOR CITIES, COMPARISONS OF CALGARY AND EDMONTON ARE FREQUENTLY HELPFUL TO OUR UNDERSTANDING OF EDMONTON'S BOUNDARY PROBLEMS.

THE MCNALLY COMMISSION REPORT AND EVENTS FOLLOWING ITS PRESENTATION PROVIDE AN EXCELLENT BASIS FOR COMPARISON OF THE DIFFERENT GROWTH EXPERIENCES OF ALBERTA'S TWO PRINCIPAL URBAN CENTRES.

I WOULD LIKE THEN, TO MAKE A FEW

COMMENTS ON THE COMPARATIVE EXPERIENCES OF THESE TWO CITIES WHICH WILL, I AM SURE, PROVE USEFUL.

GROWTH EXPERIENCES - CALGARY AND EDMONTON

THE METROPOLITAN AREAS OF BOTH EDMONTON AND CALGARY WERE HISTORICALLY FRAGMENTED. DURING THE FORMATION OF BOTH CITIES VARIOUS URBAN MUNICIPALITIES AND DEVELOPMENTS TENDED TO LOCATE ON THE PERIPHERY OF THE CENTRAL CITY. OVER THE PAST 25 YEARS OR MORE, BOTH CITIES HAVE ENDEAVOURED TO ACHIEVE A UNITARY FORM OF TERRITORIAL CONTROL THROUGH THE MECHANISMS OF ANNEXATION AND AMALGAMATION. HOWEVER, TO THIS DAY ONLY THE CITY OF CALGARY HAS BEEN SUCCESSFUL IN THESE ATTEMPTS, WHILE EDMONTON--DESPITE SOME VERY LIMITED SUCCESS--HAS REMAINED SUBSTANTIALLY FRUSTRATED IN ANY EFFORTS TO UNIFY LOCAL GOVERNMENT IN THE METROPOLITAN AREA.

TO OBTAIN A GREATER APPRECIATION OF THIS SITUATION, A

SUMMARY OF ANNEXATION ACTIVITY IN THE CITIES OF EDMONTON AND CALGARY IS NECESSARY.

AS AN ILLUSTRATION, IN THE PERIOD BETWEEN 1904 AND 1956, THE CITY OF EDMONTON OBTAINED 13 BOUNDARY ADJUSTMENTS TO ENLARGE ITS BOUNDARY FROM 8.7 SQUARE MILES TO 42.91 SQUARE MILES.

(Slide 12) BY COMPARISON, BETWEEN 1906 AND 1956, THE CITY OF CALGARY PROCESSED 8 BOUNDARY ADJUSTMENTS TO EXPAND ITS BOUNDARY FROM 2.6 SQUARE MILES TO 50 SQUARE MILES.

IN 1956, THE MCNALLY REPORT RECOMMENDED THAT THE CITY OF EDMONTON BE EXTENDED TO INCLUDE THE TOWNS OF BEVERLY AND JASPER PLACE, REFINERY ROW, THE TOWNSITE OF CAMPBELLTOWN (NOW SHERWOOD PARK), TOGETHER WITH PORTIONS OF LAND AROUND THE EXISTING CITY LIMITS. SUCH AN EXPANSION WOULD HAVE ENLARGED THE CITY OF EDMONTON FROM 44

10.

SQUARE MILES TO 112 SQUARE MILES.

A SIMILAR EXPANSION WAS

RECOMMENDED FOR CALGARY. (Slide 13) SUBSEQUENT TO DISCLOSURE OF THE MCNALLY COMMISSION FINDINGS AND BY 1961, THE CITY OF CALGARY WAS SUCCESSFUL IN EXTENDING ITS JURISDICTION TO THE ENTIRE CALGARY CENSUS METROPOLITAN AREA (151.25 SQUARE MILES), WHILE ONLY PIECEMEAL ANNEXATION WAS PERMITTED BY THE PROVINCIAL GOVERNMENT IN THE EDMONTON AREA, APPARENTLY, I MIGHT ADD, LARGELY BECAUSE OF STRONG OPPOSITION FROM THE COUNTY OF STRATHCONA.

SOME AREAS WERE ANNEXED BY THE CITY OF EDMONTON

BETWEEN 1956 AND 1960 AND ANOTHER AREA, INCLUDING THE TOWN OF BEVERLY, WAS ANNEXED IN 1961 BRINGING THE AREA OF THE CITY TO 68.6 SQUARE MILES.

IN 1963, IN AN EFFORT TO IMPLEMENT THE PRINCIPLES OF THE MCNALLY COMMISSION THE CITY OF EDMONTON APPLIED FOR AMALGAMATION OF THE INNER METROPOLITAN AREA. AFTER EXTENSIVE DELIBERATIONS BY THE LOCAL AUTHORITIES BOARD BOUNDARY ADJUSTMENTS TOTALLING ONLY 17 SQUARE MILES WERE ORDERED WHICH INCLUDED THE FORMER TOWN OF JASPER PLACE BRINGING THE AREA OF THE CITY TO 85.6 SQUARE MILES. MAJOR PORTIONS OF THE COUNTY OF STRATHCONA, IN PARTICULAR, INDUSTRIAL LANDS AND DEVELOPMENT EAST OF THE CITY BOUNDARY WERE EXCLUDED FROM THE BOARD'S APPROVAL.

SUBSEQUENT TO 1956, THE CITY COMMISSIONED THREE BOUNDARY STUDIES INCLUDING THE HANSON REPORT (1968), AND THE FUTURE OF THIS CITY (1 973 ) AND "THE RESTRICTED DEVELOPMENT AREA ANNEXATION

11. APPLICATION" (1977), WHICH ALL RECOMMENDED A SUBSTANTIAL EXPANSION OF THE CITY'S BOUNDARY. HOWEVER, SINCE THAT TIME, EDMONTON HAS ONLY BEEN SUCCESSFUL IN ENLARGING ITS BOUNDARY BY 38 SQUARE MILES FOR A TOTAL OF 123.3 SQUARE MILES. EFFORTS TO UNIFY GOVERNMENT AND PLANNING IN THE METROPOLITAN AREA HAVE BEEN UNSUCCESSFUL DESPITE THE CITY'S PRESENTATIONS AND DOCUMENTED CONCERNS. (Slide 14) FOLLOWING THE MASSIVE BOUNDARY ADJUSTMENT IN 1961, CALGARY HAS ONLY BEEN REQUIRED TO PROCESS SEVEN ANNEXATION APPLICATIONS TO BRING THE CITY'S CURRENT AREA OF CONTROL TO 187.87 SQUARE MILES.

IN SUMMARY, IT IS INTERESTING TO NOTE THAT SINCE THE RELEASE OF THE MCNALLY COMMISSION REPORT IN 1956 THE CITY OF CALGARY HAS PROCESSED NINE ANNEXATIONS AVERAGING 12.43 SQUARE MILES WHILE THE CITY OF EDMONTON HAS OBTAINED FOURTEEN BOUNDARY ADJUSTMENTS AVERAGING 5.67 SQUARE MILES. MOST RECENTLY, THE LOCAL AUTHORITIES BOARD CONFIRMED THE APPLICABILITY OF THE MCNALLY COMMISSION RECOMMENDATIONS FOR THE CITY OF CALGARY WHEN CABINET APPROVAL OF AN ANNEXATION APPLICATION AUTHORIZED THE ADDITION OF APPROXIMATELY 25 SQUARE MILES WAS RECEIVED.

BEVERLY AND JASPER PLACE ADDED

1961 AND 1963 TWO SIGNIFICANT APPLICATIONS, FOR AMALGAMATION AND ANNEXATION, RESPECTIVELY DEVELOPED IN PART, ON PRINCIPLES OF THE MCNALLY COMMISSION WERE MADE BY THE CITY OF EDMONTON. THESE APPLICATIONS RESULTED IN THE AMALGAMATION

12.

10 IN 1961 OF THE TOWN OF BEVERLY THEN NORTHEAST OF THE CITY BOUNDARY, AND IN 1964, THE TOWN OF JASPER PLACE11WITH THE CITY OF EDMONTON. OTHER SMALLER AREAS OF LAND WERE ADDED TO THE CITY'S SOUTHERN AND SOUTHEASTERN BOUNDARIES, AS A CONSEQUENCE OF THE WEST JASPER ANNEXATION APPLICATION. MOST IMPORTANTLY, HOWEVER, EDMONTON'S PROPOSALS AT THIS TIME TO ANNEX INDUSTRIAL AREAS AND THE DEVELOPING HAMLET OF SHERWOOD PARK--AGAIN, AS RECOMMENDED BY THE ROYAL COMMISSION IN 1956--WERE TURNED BACK.

THE HANSON REPORT - 1968

BY 1967, FOLLOWING DIFFICULTIES IN OBTAINING PROVINCIAL GOVERNMENT SUPPORT TO IMPLEMENT MAJOR PRINCIPLES OF THE MCNALLY COMMISSION, AND IN RECOGNITION OF THE DATED NATURE OF THE COMMISSION REPORT, THE CITY COMMISSIONED A THIRD EXAMINATION OF BOUNDARY AND JURISDICTIONAL MATTERS. THIS STUDY, COMPLETED IN 1968, BY ERIC HANSON, THEN A PROFESSOR OF ECONOMICS AT THE UNIVERSITY OF ALBERTA, EXAMINED THE POTENTIAL IMPACT OF UNIFICATION OF THE EDMONTON METROPOLITAN AREA. A MAJOR FEATURE OF THE STUDY WAS A MOST THOROUGH REVIEW OF THE FINANCIAL AND ECONOMIC IMPLICATIONS OF METROPOLITAN UNIFICATION. (Slide 15) THE PRIMARY RECOMMENDATIONS MADE IN THE HANSON REPORT--FOR THE EXPANSION OF THE CITY TO INCLUDE THE WHOLE METROPOLITAN AREA UNDER ONE COUNCIL--EVOLVED IN PART FROM THE FINDINGS OF THE MCNALLY COMMISSION. THE BOUNDARY ADJUSTMENT RECOMMENDED BY DR- HANSON WOULD, IF ACCEPTED, HAVE INCREASED THE AREA OF THE CITY FROM 152.25 SQUARE MILES TO 292 SQUARE MILES.

13.

(Slide 16) DR. HANSON ANALYSZED BOUNDARY AND MUNICIPAL GOVERNMENT PROBLEMS, WHICH IN HIS ESTIMATION HAD TO BE RESOLVED TO FACILITATE EFFICIENT DEVELOPMENT OF METROPOLITAN AREA COMMUNITIES.

PROBLEMS IDENTIFIED BY THE PROFESSOR WERE

CATEGORIZED IN THREE KEY GROUPS, NAMELY PROBLEMS RELATED TO:

FUNCTION:

FINANCE:

- THE ACHIEVEMENT OF AN ADEQUATE AND EQUITABLE TAX

THE EFFICIENT PROVISION OF VARIOUS SERVICES;

BASE, THE RAISING OF CAPITAL FUNDS AND ORDERLY BUDGETING; AND,

GOVERNMENT FORM:

THE PROPER STRUCTURE AND ORGANIZATION OF GOVERNMENT FOR EFFICIENT AND ECONOMIC DELIVERY OF SERVICES AND ADEQUATE REPRESENTATION. (Slide 17)

BASED ON HIS VERY THOROUGH ANALYSIS DR. HANSON CONCLUDED THAT SEVERAL ESSENTIAL REQUIREMENTS FOR A STRONG SYSTEM OF URBAN GOVERNMENT MUST BE CONSIDERED IN ANY BOUNDARY CHANGE OR GOVERNMENT RESTRUCTURING IN THE EDMONTON METROPOLITAN AREA. THESE REQUIREMENTS WERE IDENTIFIED AS FOLLOWS:

THE UNIT OF URBAN GOVERNMENT ADOPTED SHOULD CORRESPOND AS CLOSELY AS POSSIBLE WITH THE ECONOMIC AND SOCIAL BASE OF THE METROPOLITAN AREA;

PUBLIC SERVICES SHOULD BE PROVIDED ON A UNIFORM BASIS THROUGHOUT THE METROPOLITAN AREA;

14.

A COORDINATED SINGULAR ADMINISTRATION IS REQUIRED TO PERMIT THE EFFICIENT PROVISION OF SERVICES AND PLANNING FOR THE ENTIRE METROPOLITAN AREA;

URBAN GOVERNMENT SHOULD MAKE THE BEST POSSIBLE USE OF THE METROPOLITAN TAX BASE; AND

THE URBAN GOVERNMENT STRUCTURE THAT IS ESTABLISHED FOR THE METROPOLITAN AREA SHOULD MINIMIZE COMPLICATIONS IN THE PROVINCIAL GRANT STRUCTURE.

THE FOUR ALTERNATE GOVERNMENT FORMS EXAMINED BY DR. HANSON PRIOR TO THE RECOMMENDATION FOR THE EXPANSION OF THE CITY TO INCLUDE THE WHOLE METROPOLITAN AREA UNDER ONCE COUNCIL WERE:

THE "STATUS QUO" CASE; AN EXPANDED METROPOLITAN AREA WITH A FEDERATED STRUCTURE; AN EXPANDED METROPOLITAN AREA UNDER ONE COUNCIL; AND A REGIONAL GOVERNMENT WITH A FEDERATED STRUCTURE. (Slide 18) LATE IN 1968, EDMONTON CITY COUNCIL PRESENTED THE FINDINGS OF DR. HANSON'S RESEARCH TO THE PROVINCIAL GOVERNMENT AS THE BASIS TO INITIATE FURTHER DISCUSSIONS INTENDED TO WORK TOWARDS COOPERATIVE RESOLUTION OF EDMONTON AREA INTER-JURISDICTIONAL PROBLEMS.

DESPITE THE CITY'S INITIATIVES, RECOMMENDA-

TIONS OF THE "HANSON REPORT" WERE LARGELY IGNORED BY THE PROVINCIAL GOVERNMENT.

15.

BETWEEN 1968 AND 1973 SEVERAL APPLICATIONS FOR THE ANNEXATION OF LANDS TO THE CITY OF EDMONTON WERE PRESENTED TO AND APPROVED BY THE LOCAL AUTHORITIES BOARD. BY 1973, AS A CONSEQUENCE OF THESE APPLICATION APPROVALS THE CITY HAD EXPANDED TO 121.35 SQUARE MILES, BUT NO SERIOUS INITIATIVES TO RESOLVE PROBLEMS RELATED TO THE EXISTENCE OF MUNICIPAL JURISDICTIONS IN THE METROPOLITAN AREA, OR THE INEQUITABLE DEPENDENCE UPON THE CENTRAL CITY FOR ESSENTIAL SERVICES AND FACILITIES HAD BEEN MADE AT A METROPOLITAN OR PROVINCIAL GOVERNMENT LEVEL.

A STATEMENT ON THE FUTURE OF THIS CITY - 1973

AS A RESULT OF THE PROVINCIAL GOVERNMENT'S INACTION, IN NOVEMBER, 1973 THE CITY OF EDMONTON SUBMITTED A POLICY DOCUMENT ENTITLED A STATEMENT ON THE FUTURE OF THE CITY TO THE MINISTER OF MUNICIPAL AFFAIRS WITH A REQUEST THAT THE MINISTER REVIEW THE FINDINGS AND IMMEDIATELY INITIATE ACTIONS TO UNIFY LOCAL GOVERNMENT IN THE EDMONTON METROPOLITAN AREA. (Slide 19) THE FUTURE OF THIS CITY REPORT OUTLINED A PORPOSAL FOR BOUNDARY ADJUSTMENT SIMILAR TO THAT RECOMMENDED BY DR. HANSON IN 1968, AND PROPOSED INCLUSION OF AN AREA OF APPROXIMATELY 316 SQUARE MILES IN THE CITY'S JURISDICTION. THE STUDY, PREPARED BY THE EDMONTON ADMINISTRATION, ALSO RECOMMENDED A UNITARY GOVERNMENT AS THE MOST EFFICIENT AND EFFECTIVE GOVERNMENT FORM. THE "FUTURE" STUDY PROPOSALS WERE BASED, IN PART, ON THE PRINCIPLES AND FINDINGS OF BOTH THE MCNALLY COMMISSION AND HANSON REPORT.

OBJECTIVES OF THE SUBMISSION

INCLUDED: (Slide 20)

16.

ESTABLISHMENT OF NON-FRAGMENTED LOCAL GOVERNMENT IN THE METROPOLITAN AREA; SOCIAL AND ECONOMIC WELL BEING OF ALL AREA RESIDENTS; EQUITY IN ACCESS TO AND SUPPORT OF SERVICES AND RESOURCES OF THE METROPOLITAN AREA; ESTABLISHMENT OF SINGLE, BUT DECENTRALIZED LOCAL GOVERNMENT ADMINISTRATION SENSITIVE TO AREA AND CITIZEN NEEDS; EFFICIENT LOCAL GOVERNMENT COORDINATION; AND PRESERVATION OF LOCAL AUTONOMY TO THE EXTENT PRACTICAL.

THE INTENT OF THE REPORT WAS TO ENCOURAGE THE PROVINCIAL GOVERNMENT TO REVIEW THE EXISTING SITUATION OF JURISDICTIONAL FRAGMENTATION IN THE METROPOLITAN AREA AGAIN, DESPITE THE CITY'S INITIATIVES NO FORMAL RESPONSE TO THIS REPORT HAS EVER BEEN RECEIVED FROM THE PROVINCIAL GOVERNMENT.

RESTRICTED DEVELOPMENT AREA ANNEXATION PROPOSAL - 1977

AS A RESULT OF THE FAILURE OF THE PROVINCE TO ACT ON PROPOSALS OF THE "FUTURE REPORT", IN SEPTEMBER 1977 AND IN RECOGNITION OF "...THE UNNECESSARY CONFLICT THAT CONTINUES TO BUILD IN THE METROPOLITAN AREA AND IS NOW SERIOUSLY AFFECTING THE PLANNING FOR AND DEVELOPMENT OF LANDS ON OUR IMMEDIATE BOUNDARY", THE CITY PRESENTED A REQUEST DIRECTLY TO THE PROVINCIAL CABINET FOR AN IMMEDIATE EXTENSION OF THE CITY BOUNDARY TO THE INNER LIMIT OF THE EDMONTON R.D.A.

ADDITIONALLY, COUNCIL REQUESTED THAT THE PROVINCE IMMEDIATELY

ESTABLISH A PUBLIC INQUIRY COMMISSION TO STUDY AND BRING FORWARD RECOMMENDATIONS ON THE FUTURE FORM AND BOUNDRIES OF LOCAL GOVERNMENT IN THE EDMONTON METROPOLITAN AREA.

17.

(Slides 21, 22) IN MAY, 1978 THE PROVINCE ADVISED THAT EDMONTON MUST PROCEED THROUGH THE RECOGNIZED PROCEDURES OF THE LOCAL AUTHORITIES BOARD BEFORE ANY PRESENTATIONS ON BOUNDARY ADJUSTMENT WOULD BE REVIEWED BY CABINET. SUBSEQUENTLY, ON JUNE 13, 1978 COUNCIL SUPPORTED INITIATION OF A PROGRAM OF STUDIES INTENDED TO RESULT-IN PRESENTATION OF AN ANNEXATION APPLICATION TO THE L.A.B. IN THE SPRING, 1979. (Slide 23)

OTHER BOUNDARY STUDIES

BEFORE I ELABORATE ON THE ORGANIZATION, CONDUCT, AND CONCLUSION OF EDMONTON ANNEXATION PROJECT, I WOULD LIKE TO ADVISE YOU OF A FEW OTHER STUDIES AND WORKS WHICH HAVE ASSISTED NOT ONLY MYSELF, BUT THE PROJECT CONSULTANTS AND COUNCIL IN DEVELOPMENT OF THE EDMONTON ANNEXATION APPLICATION. ONE OF THE MOST USEFUL WORKS TO OUR RESEARCH EFFORTS HAS BEEN THE REPORT OF THE ALBERTA 9 LAND USE FORUM , PUBLISHED IN 1976 BY THE PROVINCIAL GOVERNMENT. THE LAND USE FORUM COMMISSIONERS DEVOTE CONSIDERABLE ATTENTION TO THE PROBLEMS OF EDMONTON METROPOLITAN LAND USE PLANNING AND DEVELOPMENT, ESPECIALLY AS THESE PROBLEMS RELATE TO THE EXISTENCE OF SEVERAL MUNICIPAL JURISDICTIONS, OFTEN WITH OVERLAPPING AND POORLY COORDINATED FUNCTIONS OPERATING IN THE SAME OR ADJACENT AREAS. I FIND SOME OF THE CONCLUSIONS AND SUMMARY OBSERVATIONS OF THE FORUM COMMISSIONERS VERY PERCEPTIVE AND GERMAINE TO OUR DISCUSSIONS HERE.

IT IS

PARTICULARLY IMPORTANT TO NOTE THAT AFTER EXTENSIVE RESEARCH AND TRAVEL TO REVIEW OTHER METROPOLITAN DEVELOPMENT EXPERIENCES THE LAND USE FORUM REPORTED THAT:

18.

"THE PROBLEMS WHICH HAVE BEEN CREATED BY LARGE SCALE DEVELOPMENTS IN THE REGION AROUND EDMONTON ARE IMMENSE. ACCESS FOR THE COMMUTER POPULATION TO PLACES OF EMPLOYMENT IN THE CITY, FOR EXAMPLE, IMPOSES HEAVY PRESSURES ON BOTH PROVINCIAL AND CITY ROADWAY SYSTEMS.

GROWING PROPORTION OF THE RESIDENTS OF THESE DORMITORY SUBURBS LIVE THERE BY NECESSITY RATHER THAN BY CHOICE OF LIFE STYLE, THUS THE DEMANDS OF THIS POPULATION ON THE AMENITIES OF THE CENTRAL CITY WILL 10 BE LARGE." (Slide 24) THE FORUM COMMISSIONERS CONTINUED BY INDICATING:

"UNDER THE PRESENT REGIONAL PLANNING SYSTEM, THE CITY HAS LITTLE SAY ABOUT DEVELOPMENTS OCCURRING IN ITS REGION.

UNDER THE SYSTEM

PROPOSED BY THE FORUM FOR THE OTHER REGIONAL PLANNING COMMISSIONS, WHEREBY EACH LOCAL MUNICIPALITY WOULD HAVE THE AUTHORITY TO APPROVE SUBDIVISIONS WITHIN ITS BOUNDARY, THE ABILITY OF EDMONTON TO INFLUENCE DEVELOPMENT IN ITS REGION WOULD BE REMOVED COMPLETELY IT IS THE OPINION OF THE FORUM THAT THE CITY OF EDMONTON MUST BE ACCORDED ADEQUATE INFLUENCE OVER DEVELOPMENT IN ITS REGION. THE MOST DESIRABLE WAY TO ACHIEVE THE NECESSARY INFLUENCE, THE FORUM SUGGESTS, IS WITHIN A UNITARY SYSTEM OF LOCAL GOVERNMENT FOR THE METROPOLITAN REGION. THIS WOULD MEAN THE AMALGAMATION OF EDMONTON CITY WITH SOME RURAL AND URBAN AREAS IN THE EDMONTON REGION. THE CONSEQUENCE OF NOT FOLLOWING THIS COURSE OF ACTION IS THAT A REGIONAL SYSTEM OF GOVERNMENT WILL INEVITABLY BE ESTABLISHED. EXPERIENCE IN OTHER AREAS INDICATES THAT THIS IS NEITHER AN EFFECTIVE NOR AN EFFICIENT FORM OF 11 GOVERNMENT."

19.

FINALLY, AFTER CONSIDERABLE DEBATE AND EXAMINATION OF THE CONSEQUENCES OF ALTERNATIVE PATTERNS OF URBAN DEVELOPMENT (OR URBAN FORM) THE LAND USE FORUM COMMISSION DECISIVELY INDICATED THAT:

"EXPANSION OF THE TWO CENTRAL CITIES, CONTIGUOUSLY AT THEIR URBAN PERIPHERIES, WILL HAVE TO OCCUR, WHATEVER OPTIONS ARE ADOPTED FOR THE BROADER METROPOLITAN REGIONS.

SUCH EXPANSION...IS PREFERABLE TO

FURTHER DEVELOPMENT OF DORMITORY SUBURBS NEARBY.

THERE IS ALSO A

NEED FOR IMPROVED COORDINATION OF LONG-TERM URBAN AND REGIONAL TRANSPORTATION PLANNING WITH PLANNING FOR THE INTRA-URBAN FORM AND THE FORM OF METROPOLITAN REGIONS.

THE EDMONTON ANNEXATION PROJECT

AT THIS POINT I WOULD LIKE TO PROVIDE YOU WITH AN APPRECIATION OF THE ORGANIZATION, OBJECTIVES, AND PROCESS FOLLOWED IN THE DEVELOPMENT OF THE ANNEXATION APPLICATION NOW BEFORE YOU FOR CONSIDERATION. (Slide 25) ON JUNE 13, 1978 THE CITY OF EDMONTON COMMITTED TO THE COMMENCEMENT OF A MAJOR LONG RANGE PLANNING PROGRAM INTENDED TO CULMINATE IN THE PRESENTATION OF A COMPREHENSIVE ANNEXATION APPLICATION TO THE LOCAL AUTHORITIES BOARD IN 1979. THAT PROGRAM--THE EDMONTON ANNEXATION PROJECT--REPRESENTS A MAJOR UNDERTAKING OF THE CITY AND HAS REQUIRED THE COMMITMENT OF SIGNIFICANT RESOURCES IN THE CONDUCT OF SUPPORT STUDIES AND IN ORGANIZATION OF THESE PRESENTATIONS TO THE BOARD. GIVEN THE COMPLEXITY OF THE ANNEXATION PROGRAM, I SHOULD BEGIN WITH A DESCRIPTION, IN GENERAL TERMS, OF THE CITY'S ANNEXATION OBJECTIVES AND PROVIDE A SUMMARY WORK PROGRAM LEADING TO COMPLETION OF OUR APPLICATION.

20.

AS I HAVE INDICATED EARLIER, NUMEROUS SUBMISSIONS ON BOUNDARY ADJUSTMENT HAVE BEEN CONSIDERED OR PRESENTED BY THE CITY OF EDMONTON TO PROVINCIAL AUTHORITIES IN THE PAST QUARTER CENTURY. THESE EARLIER SUBMISSIONS WERE, HOWEVER, UNSUCCESSFUL IN ACHIEVING ANY COMPREHENSIVE ADJUSTMENT OF EDMONTON'S CORPORATE BOUNDARIES.

IN PART, THIS LACK OF SUCCESS MAY HAVE RELATED TO THE

COMPREHENSIVENESS OF EARLIER PRESENTATIONS ADVANCING PROPOSALS FOR BOUNDARY RATIONALIZATION AND GOVERNMENT REOGRANIZATION, ESPECIALLY IN RESPECT OF THE LEVEL OF UNDERSTANDING DISPLAYED OF THE IMPLICATIONS OF CITY PROPOSALS ON AFFECTED JURISDICTIONS AND PARTIES.

MORE SPECIFICALLY, MANY OF THE EARLIER PROPOSALS TO THE PROVINCIAL GOVERNMENT GAVE MORE LIMITED ATTENTION TO PRESENTATION OF DETAILED TECHNICAL ASSESSMENTS OF THE IMPLICATIONS OF PROPOSALS ON ALL AFFECTED PARTIES AND INTEREST GROUPS.

AS A CONSEQUENCE OF THE CITY'S REPREATED INABILITY TO BRING ABOUT AN ADJUSTMENT TO THE CITY BOUNDARY, EDMONTON CITY COUNCIL ON JUNE 13, 1978 APPROVED BUDGETARY ALLOCATIONS AND ADMINISTRATIVE STAFF COMMITMENTS NECESSARY TO PREPARE A THOROUGH REVIEW OF EDMONTON'S REQUIREMENTS FOR SUBMISSION TO THE LOCAL AUTHORITIES BOARD. COUNCIL'S COMMITMENT RESULTED IN THE ASSEMBLY OF A SMALL GROUP OF SENIOR PROFESSIONAL STAFF FROM WITHIN THE EXISTING CIVIC ADMINISTRATION, AND THE APPOINTMENT OF PROFESSIONALS IN A NUMBER OF DISCIPLINE AREAS INCLUDING:

LEGAL; LAND USE PLANNING; ECONOMICS; MUNICIPAL FINANCE;

21.

PUBLIC TRANSPORTATION; ROADWAY AND UTILITY PLANNING; LOCAL GOVERNMENT ORGANIZATION; ENVIRONMENTAL IMPACT; AGRICULTURAL PRACTICES; AND SOCIAL SERVICES. (Slide 26) THIS GROUP, UNDER MY DIRECTION WAS, IN TURN, CHARGED WITH RESPONSIBILITY OF CRITICALLY ASSESSING THE FULL RANGE OF BOUNDARY AND GOVERNMENT FORM OPTIONS AVAILABLE TO THE CITY OF EDMONTON, AND OF PRESENTING RECOMMENDATIONS FOR COUNCIL'S CONSIDERATION IN ADVANCE OF THESE PRESENTATIONS TO THE LOCAL AUTHORITIES BOARD.

IN APPROVING THE EDMONTON ANNEXATION PROJECT, EDMONTON CITY COUNCIL ESTABLISHED TERMS OF REFERENCES TO BE FOLLOWED BY PROJECT STAFF AND SUPPORT PERSONNEL ASSEMBLYING THE CITY'S ANNEXATION PRESENTATION. TERMS OF REFERENCE FOR THE PROJECT WERE SPECIFIED AS FOLLOWS:

TO UNDERTAKE A COMPREHENSIVE INVESTIGATION OF EDMONTON'S IMMEDIATE AND LONG RANGE LAND SUPPLY REQUIREMENTS, AND TO PRESENT THE RESULTS OF THIS EXAMINATION IN A SERIES OF TECHNICAL REPORTS PROVIDING THE BASIS FOR DEVELOPMENT OF A CITY OF EDMONTON ANNEXATION POLICY PROPOSAL; (Slide 27) TO EXAMINE THE FINANCIAL, GOVERNMENTAL, LEGAL, SOCIAL, ENVIRONMENTAL, ADMINISTRATIVE, SERV ICING,

AND ORGANIZATIONAL ADVANTAGES AND

DISADVANTAGES FOR THE CITY OF EDiONTON, AFFECTED JURISDICTIONS AND INTEREST GROUPS OF BOUNDARY EXPANSION AND GOVERNMENT REORGANIZATION ALTERNATIVES;

22.

(Slide 28) TO PRESENT RESULTS OF DETAILED TECHNICAL INVESTIGATIONS IN THE FORM OF A CONSOLIDATED SYNOPSIS FOR EDMONTON CITY COUNCIL'S CONSIDERATION IN THE SPRING, 1979; (Slide 29) TO PRESENT RECOMMENDATIONS TO EDMONTON CITY COUNCIL BEFORE MAY, 1979 OUTLINING A PROPOSAL FOR BOUNDARY ADJUSTMENT SUFFICIENT TO SATISFY LONG RANGE (BEYOND 2001) LAND USE PLANNING AND DEVELOPMENT REQUIREMENTS, AND DESCRIBING A PROPOSED ADMINISTRATIVE AND GOVERNMENTAL REORGANIZATION CONSIDERED APPROPRIATE TO ENSURE EFFECTIVE LONG RANGE JURISDICTIONAL CONTROL AND AUTONOMY IN THE EDMONTON METROPOLITAN AREA OVER ALL ASPECTS OF METROPOLITAN LAND USE PLANNING, LAND DEVELOPMENT, SERVICING, AND FINANCE; AND (Slide 30) TO PROVIDE A CONCISE REPORT CONTAINING DETAILED RECOMMENDATIONS RELATING TO IMPLEMENTATION OF PROPOSALS ADVANCED UNDER (4) AS THE BASIS OF THE CITY OF EDMONTON'S SUBMISSION TO THE LOCAL AUTHORITIES BOARD IN THE SPRING, 1979. (Slide 31) ON MARCH 20, 1979, FOLLOWING PRELIMINARY REPORTS TO MEMBERS OF COUNCIL IN JANUARY, 1979, PROJECT STAFF, LEGAL COUNSEL, AND CONSULTANTS PRESENTED THE PRELIMINARY RESULTS OF INVESTIGATIONS INTO A NUMBER OF BOUNDARY AND GOVERNMENT REORGANIZATION ALTERNATIVES. AS A CONSEQUENCE OF THE PRESENTATIONS TO COUNCIL ON MARCH 20, 1979 A FORMAL APPLICATION FOR THE ANNEXATION OF THE LANDS CONTAINED IN THE APPLICATION BEFORE YOU, WAS FILED WITH THE LOCAL AUTHORITIES BOARD ON MARCH 21, 1979.

SINCE THAT TIME STAFF AND PROJECT COUNSEL HAVE

WORKED TO ASSEMBLE THE CITY'S DETAILED PRESENTATIONS IN SUPPORT OF THE CITY'S

23.

APPLICATION, AS PRESCRIBED BY COUNCIL'S DIRECTIVE JUNE 13, 1978 AND THE ORIGINAL TERMS OF REFERENCE. (Slide 32) I WOULD LIKE TO APPRISE YOU OF THE VERY SERIOUS AND EXHAUSTIVE STUDY DIRECTED BY THE CITY ADMINISTRATION, ITS CONSULTANTS, AND COUNCIL TOWARDS THE REVIEW AND DEBATE OF THE BOUNDARY FINALLY SELECTED AS THE BASIS OF THE CITY'S ANNEXATION APPLICATION. IN TOTAL MORE THAN 1,500 MAN-DAYS OF EFFORT PRECEDED SELECTION OF THE BOUNDARY IN MARCH 1979. SINCE THAT TIME A MINIMUM ADDITIONAL 2,000 MAN-DAYS OF WORK HAS BEEN DIRECTED TOWARDS FINALIZATION OF THE CITY'S TECHNICAL STUDIES AND SUBMISSIONS. IN ALL ABOUT $1.2 MILLION DOLLARS AND THE ENERGIES OF AT LEAST 16 HIGHLY RESPECTED PROFESSIONAL FIRMS FROM AS MANY DISCIPLINES HAS BEEN INVESTED TO THIS POINT TO PROVIDE A THOROUGHLY AND RIGOROUSLY RESEARCHED AND DOCUMENTED APPLICATION ON BEHALF OF THE CITY OF EDMONTON.

RESPONSIBILITY FOR OVERALL POLICY DIRECTION OF THE PROJECT IN CARRYING OUT COUNCIL'S DIRECTIVES WAS DELEGATED TO THE COMMISSION BOARD OF THE CITY OF EDMONTON AND TO THE ANNEXATION PROJECT STEERING COMMITTEE. (Slide 33) REPORT TO THE STEERING COMMITTEE, I SERVED AS THE PROJECT DIRECTOR AND WAS CHARGED WITH RESPONSIBILITY TO SELECT, MANAGE, AND UTILIZE RESOURCES NECESSARY TO COMPLETE A PROGRAM OF DETAILED TECHNICAL STUDIES IN FURTHERANCE OF THE CITY'S ANNEXATION INITIATIVES.

AT COUNCIL'S DIRECTION THE PROJECT DIRECTOR AND SPECIAL LEGAL COUNSEL-APPOINTED BY THE CITY SOLICITOR AND COMMISSION BOARD - -WERE DIRECTED TO PRESENT A REPORT CONTAINING RECOMMENDATIONS ON BOUNDARY ADJUSTMENT AND GOVERNMENT

24.

REORGANIZATION TO THE PROJECT STEERING COMMITTEE AND CITY COUNCIL BEFORE APRIL, 1979.

IN ADDITION, THE PROJECT DIRECTOR AND LEGAL COUNSEL WERE

ASSIGNED RESPONSIBLITY FOR PREPARATIONS AND PRESENTATIONS ULTIMATELY TO BE REQUIRED BEFORE THE LOCAL AUTHORITIES BOARD.

THE ANNEXATION PROJECT WAS ORGANIZED TO ENSURE THAT ALL CONSULTANT PERSONNEL AND OTHER PROJECT STAFF REPORTED THROUGH THE DIRECTOR OF THE PROJECT, WHO ACTED AS CHAIRMAN OF A CONSULTANT COMMITTEE. THIS COMMITTEE WAS CHARGED WITH RESPONSIBILITY FOR DEVELOPMENT OF THE PROJECT'S DETAILED WORK PROGRAM, AND FOR THE REGULAR MONITORING AND INTEGRATION OF ALL PROJECT CONSULTANT ACTIVITIES. THE COMMITTEE WAS COMPOSED OF ONE PRINCIPAL FROM EACH MAJOR FIRM CONTRACTED TO PROVIDE TECHNICAL ASSISTANCE TO THE PROJECT.

IN ORGANIZING THE EDMONTON ANNEXATION PROJECT WE RECOGNIZED THAT THE CITY OF EDMONTON, THE PROVINCIAL GOVERNMENT, ADJACENT JURISDICTIONS AND MANY OTHER AREA INTEREST GROUPS MIGHT ALL HAVE DIFFERENT GOALS AND OBJECTIVES REGARDING THE ADJUSTMENT OF MUNICIPAL BOUNDARIES AND FUTURE GOVERNMENT ARRANGEMENTS WITHIN THE EDMONTON METROPOLITAN AREA. CONSEQUENTLY, THE EDMONTON ANNEXATION PROJECT STUDIES WERE INITIATED WITHIN THE FRAMEWORK OF A PROCESS TO OBJECTIVELY IDENTIFY AND EVALUATE A WIDE RANGE OF BOUNDARY, GOVERNMENT ORGANIZATION AND URBAN DEVELOPMENT OPTIONS AVAILABLE TO THE CITY AND THE METROPOLITAN AREA. FURTHER, IN OUR EFFORTS LEADING TO ORGANIZATION OF THIS PROJECT, WE WERE CONCERNED THAT THE PROCESS IDENTIFY THE INTERESTS OF ALL IDENTIFIABLE PARTIES, NOT EXCLUSIVELY THE APPLICANT'S, AND THAT THE CONCERNS OF THESE INTERESTS BE FULLY EXAMINED AND EVALUATED PRIOR TO ANY IRREVOCABLE ACTIONS OR INITIATIVES OF THE CITY. IN OUR ANNEXATION DELIBERATIONS, THEN, WE HAVE RECOGNIZED THE FUNDAMENTAL NECESSITY TO ASCERTAIN THE POTENTIAL IMPACT OF

25.

ANY BOUNDARY ADJUSTMENT ON OTHER JURISDICTIONS AND PRIVATE INTERESTS BEFORE INITIATING ACTIONS OR PRESENTATIONS TO THE LOCAL AUTHORITIES BOARD.

CITY

COUNCIL, AS I HAVE EMPHASIZED, WAS INSISTENT UPON SUCH AN APPROACH.

(Slide 34) LIKEWISE, WE ALSO RECOGNIZED AT THE OUTSET OF THE ANNEXATION DISCUSSIONS, THAT GIVEN THE CITY'S PREVIOUS UNSATISFACTORY EXPERIENCES WITH FRAGMENTAL OR PIECEMEAL ANNEXATION, A BOUNDARY ADJUSTMENT SUFFICIENT TO SATISFY LONGER TERM LAND PLANNING SERVICING AND DEVELOPMENT REQUIREMENTS WOULD BE THE MINIMUM ACCEPTABLE FOR PRESENTATION TO THE LOCAL AUTHORITIES BOARD. IN THIS REGARD, ALTERNATIVE ANNEXATIONS BOUNDARIES, INCLUDING THE BOUNDARY ACCEPTED BY COUNCIL ON MARCH 20, 1979, WERE OF COURSE, DISCUSSED ON A NUMBER OF OCCASIONS AFTER THE PROJECT COMMENCEMENT, BUT NO COMMITMENT WAS MADE TO THE PREFERRED BOUNDARY IN ADVANCE OF A FULL REVIEW OF THE ADVANTAGES AND DISADVANTAGES OF BOUNDARY AND LOCAL GOVERNMENT CHANGE ON ALL AFFECTED PARTIES. THE PRESENTATIONS BY OUR CONSULTANTS AND OTHER RESOURCE STAFF DURING THESE HEARINGS WILL EMPHASIZE THE THOROUGHNESS OF OUR ASSESSMENT OF THE ADVANTAGES AND DISADVANTAGES OF THESE BOUNDARY AND GOVERNMENT PROPOSALS ON ALL IDENTIFIABLE AFFECTED AND INTERESTED GROUPS.

TO ACCOMPLISH COUNCIL'S OBJECTIVES THE PROJECT WAS DESIGNED AS AN ITERATIVE PROCESS, GIVING AT THE OUTSET FULL CONSIDERATION TO AS A BROAD RANGE OF BOUNDARY, LAND USE AND JURISDICTIONAL ALTERANTIVES AS POSSIBLE. NECESSARILY THE PROCESS PROVIDED EXPLICIT POINTS WHERE THE NUMBER OF ALTERNATIVES WAS NARROWED ON THE BASIS OF EVALUATIONS OF THE FINANCIAL AND JURISDICTIONAL MERITS OF BOUNDARY AND GOVERNMENT STRUCTURE ALTERNATIVES. PRINCIPALLY THIS WAS ACCOMPLISHED BY QUANTITATIVE EVALUATIONS BUT--AS WITH ANY INVESTIGATION INVOLVING CHANGES TO THE SYSTEM OF LOCAL POLITICAL REPRESENTATION--THE

26.

EXPERIENCED JUDGEMENT OF THE VARIOUS PROJECT PARTICIPANTS WAS CALLED UPON AS NECESSARY.

MORE SPECIFICALLY, THE CONSULTANT COMPONENTS OF THE PROJECT WHICH WAS COMPRISED OF FIVE (5) PHASES, WERE UNDERTAKEN BETWEEN MID-NOVEMBER, 1978 AND EARLY SEPTEMBER, 1979.

PHASES I AND II WERE DESIGNED TO FORMULATE AND

EVALUATE ALTERNATIVE BOUNDARY AND GOVERNMENT STRUCTURE PLANS IN SUCCESSIVELY GREATER LEVELS OF DETAIL, GRADUALLY ELIMINATING THOSE CONSIDERED INFEASIBLE OR UNECONOMIC, AND REFINING THE ASSESSMENT OF REMAINING ALTERNATIVES FOR CONTINUED EXAMINATION LEADING TO A RECOMMENDED STRATEGY.

THIS PROCEDURE

ALLOWED FOR CONSIDERATION OF SEVERAL GOVERNMENT FORM BOUNDARY AND LAND USE ALTERNTIVES, AND, THE DISCARDING OR RETENTION OF ALTERNATIVES AT DIFFERENT STAGES DEPENDING ON FINANCIAL OR OPERATIONAL FEASIBILITY. (Slide 35) FOR CONVENIENCE PROJECT WORK PROGRAMS AND ACTIVITIES WERE DIFFERENTIATED INTO MAJOR DISCIPLINE "STREAMS" INCLUDING:

GOVERNMENT ORGANIZATION AND STRUCTURE; LAND USE PLANNING; UTILITY PLANNING; ROADWAY AND PUBLIC TRANSIT PLANNING; FINANCIAL/ECONOMIC IMPACT; ENVIRONMENTAL IMPACT; AND AGRICULTURAL IMPACT.

(Slide 36)

27.

THE PROJECT SCHEDULE WAS BROKEN INTO FIVE (5) DISTINCT "PHASES".

- PHASE ONE INVOLVED THE DEVELOPMENT OF A SERIES OF DATA BASES AND -REGIONAL ECONOMIC DEVELOPMENT SCENARIOS. ADDITIONALLY, PHASE ONE INCLUDED AN ASSESSMENT OF THE "STATUS QUO" (EXISTING BOUNDARIES) FROM FINANCIAL, SERVICING, TRANSPORTATION, PLANNING AND LOCAL GOVERNMENT AND OTHER PERSPECTIVES;

- PHASE TWO PROVIDED FOR A COMPARISON OF EACH OF SEVERAL BOUNDARY OPTIONS WITH THE "STATUS QUO". THE POSITION OF KEY INTEREST GROUPS WAS ALSO IDENTIFIED AND ASSESSED IN THIS PHASE. MAJOR INITIATIVES TO INFORM ALL POTENTIALLY AFFECTED PUBLICS AND JURISDICTIONS OF THE PROJECT WERE ADVANCED AT THIS PHASE;

- IN PHASE THREE, EVALUATIVE CRITERIA WERE DEVELOPED BY EACH DISCIPLINE GROUP TO ASSESS THE VARIOUS OPTIONS AND TO FACILITATE OBJECTIVE SELECTION OF THE MOST APPROPRIATE BOUNDARY AND GOVERNMENT STRUCTURE ALTERNATIVES;

- PHASE FOUR INVOLVED A MORE REFINED EVALUATION OF THE CHOSEN ALTERNATIVE WITH A VIEW TO DEVELOPING A GREATER LEVEL OF DETAIL THAN WAS POSSIBLE IN THE EARLIER PHASES. THIS PHASE ALSO INCLUDED A SENSITIVITY ANALYSIS DESIGNED TO DETERMINE THE IMPLICATIONS OF CHANGING CERTAIN BASIC OR CRITICAL ASSUMPTIONS; AND

29.

RELATIVELY MINOR SCHEDULING DIFFICULTIES AND AS A CONSDQUENCE OUR PROGRAM SCHEDULE HAS OF NECESSITY EXTENDED BY APPROXIMATELY TWO MONTHS. NEVERTHELESS, WE ARE CURRENTLY OPERATING WITHIN THE ORIGINAL BUDGETARY GUIDELINES OF EDMONTON CITY COUNCIL, SOMETHING THAT IS ALL TOO INFREQUENTLY ACHIEVED IN A PROGRAM OF THIS MAGNITUDE AND SCOPE.

RELATIONSHIP OF ANNEXATION TO OTHER MUNICIPAL PROGRAMS

AT THIS POINT IT IS APPARENT THAT THE CITY BOUNDARY PROPOSALS--IF IMPLEMENTED--MAY HAVE VERY SIGNIFICANT IMPLICATIONS ON THE FUTURE EVOLUTION OF THE CITY OF EDMONTON AND THE EDMONTON METROPOLITAN AREA, IN GENERAL. FOR THIS REASONS OUR WORK ON THE PROJECT WAS NECESSARILY CLOSELY RELATED IN SEVERAL IMPORTANT WAYS TO OTHER CITY POLICIES AND PROGRAMS, AND MORE PARTICULARLY TO KEY DECISIONS THE CITY IS CONTINUALLY FORMULATING IN RESPONSE TO REGIONAL PLANNING AND DEVELOPMENT PROPOSALS WHICH AFFECT THE CITY'S FUTURE. KEY AREAS IN WHICH A HIGH DEGREE OF COOPERATION AND COORDINATION WAS MAINTAINED THEREFORE THROUGHOUT THIS PROJECT INCLUDED: (Slide 37) REVIEWS OF THE EDMONTON GENERAL PLAN AND ZONING BYLAWS;

MUNICIPAL WORKS AND SERVICING SYSTEM EXTENSIONS;

INTER-MUNICIPAL AGREEMENTS;

PRIVATELY INITIATED ANNEXATION PROPOSALS;

28.

- FINALLY, PHASE FIVE-RECENTLY COMPLETED-CONSISTED OF PREPARATION OF THE INTEGRATED REPORT AND THE DEVELOPMENT OF OUR PRESENTATIONS TO THIS BOARD.

TECHNICAL WORK ACTIVITIES OF THE PROJECT CONSISTED OF A VARIETY OF TASKS ASSOCIATED WITH THE MAJOR ACTIVITIES IDENTIFIED AT THE OUTSET OF THE PROJECT. THESE TASKS, AS OUTLINED IN THE DETAILED WORK PROGRAMS PREPARED BY EACH CONSULTANT WERE DESCRIBED ACCORDING TO THEIR PURPOSE, THE PROCEDURE TO BE FOLLOWED, INPUTS OF INFORMATION OR ANALYSIS REQUIRED FROM OTHER TASKS OR SOURCES, THE OUTPUT OF THE TASK, AND RESPONSIBILITY FOR PERFORMANCE OF WORK.

YOU WILL, I AM SURE, APPRECIATE FROM MY COMMENTS, THUS FAR, THAT THE SCHEDULE FOR THIS PROJECT WAS AN AMBITIOUS ONE. MAJOR ACTIVITIES ON ORGANIZATION OF THE PROJECT COMMENCED IN JUNE OF 1978, AND CARRIED THROUGH THE SUMMER MONTHS. PRELIMINARY RESEARCH INTO EXPERIENCES OF OTHER CITIES ACROSS THE CONTINENT WITH SIMILAR GOVERNMENT ORGANIZATION AND ANNEXATION PROGRAMS WAS UNDERTAKEN IN JULY AND AUGUST.

APPOINTMENT OF PROJECT CONSULTANTS FOLLOWED PRELIMINARY

RESEARCH AND ORGANIZATION EFFORTS. AFTER OCTOBER 1978, PROJECT CONSULTANTS WORKED WITH US TO JOINTLY DEVELOP A WORK PROGRAM AND ANALYTICAL PROCEDURE ACCORDING TO COUNCIL'S INSTRUCTIONS AND OBJECTIVES.

SINCE OCTOBER, WE HAVE COMPLETED THE PRELIMINARY ANALYSIS OF BOUNDARY ALTERNATIVES THAT LED TO COUNCIL'S APPROVAL ON MARCH 20, 1979, OF THE CITY'S INITIATING APPLICATION, AND ELEVEN MAJOR TECHNICAL STUDIES OF ALL FACETS OF THE SIGNIFICANT IMPLICATIONS OF THE PROPOSED JURISDICTIONAL CHANGE ON AFFECTED PARTIES. AS A RESULT OF SOME DIFFICULTIES RELATING TO PROVINCIAL PROGRAMS ANNOUNCED DURING THE COURSE OF THE ANNEXATION STUDIES WE HAVE EXPERIENCED SOME

30.

CITY INPUT TO THE EDMONTON REGIONAL PLANNING COMMISSION RESPECTING THE REGIONAL PLAN, MUNICIPAL GENERAL PLANS, "NEW TOWN" PROPOSALS, AND REGIONAL ZONING AND SUBDIVISION APPLICATIONS; AND

DEVELOPMENT OF THE CITY'S POSITION IN RESPONSE TO THE EDMONTON REGIONAL UTILITIES STUDY.

THE ESSENTIAL COORDINATION OF THE CITY'S ACTIVITIES IN THIS REGARD WAS ACHIEVED THROUGH:

LIAISON IN DEVELOPMENT OF THE CITY'S NEW GENERAL PLAN AND ZONING BYLAWS;

DIRECT COORDINATION OF EFFORTS WITH EACH CIVIC DEPARTMENT;

PREPARATION OF ALTERNATIVE URBAN DEVELOPMENT CONCEPTS AND PLANS ASSOCIATED WITH THE ANNEXATION PROJECT WERE FORMULATED AND EVALUATED IN CONSULTATION WITH AFFECTED CIVIC DEPARTMENTS;

PROJECT STAFF ASSUMED DIRECT RESPONSIBILITY IN CERTAIN KEY AREAS ASSOCIATED WITH THE CITY'S INPUT TO THE EDMONTON REGIONAL PLANNING COMMISSION; AND

PROJECT STAFF PARTICIPATED ON SPECIAL PURPOSE COMMITTEES ESTABLISHED TO DEAL WITH SPECIFIC ISSUES, SUCH AS THE EDMONTON REGIONAL UTILITIES STUDY REVIEW.

31.

BOUNDARY SELECTION CRITERIA

BEFORE CLOSING, WITH A THOROUGH REVIEW OF THE BOUNDARY AREAS INCLUDED WITHIN THE CITY'S APPLICATION, I WOULD LIKE TO ADVISE YOU OF THE SPECIFIC CRITERIA USED IN SELECTION OF THE BOUNDARY FOR THE CITY'S APPLICATION.

AS I HAVE

STATED, THESE CRITERIA WERE PRIMARILY DEVELOPED ON THE BASIS OF A REVIEW OF OTHER STUDIES INTO BOUNDARY AND METROPOLITAN GOVERNMENT PROBLEMS.

TO BEGIN, THE BOUNDARY INCLUDES ALL AREAS OF EXISTING AND PROBABLE FUTURE URBAN DEVELOPMENT--A PRINCIPLE ADVANCED IN MANY STUDIES INCLUDING THE MCNALLY AND HANSON SUBMISSIONS. (Slide 38) IT IS IMPORTANT THAT THESE CRITERIA BE ENTERED FOR YOUR CONSIDERATION. SPECIFICALLY, THE MCNALLY COMMISSION ADVANCED THE FOLLOWING CRITERIA WHICH SUPPORT A MAJOR BOUNDARY ADJUSTMENT FOR THE CITY OF EDMONTON TODAY:

IT IS UNJUST AND INEQUITABLE THAT WISE VARIATIONS IN THE TAX BASE SHOULD EXIST AMONG THE LOCAL GOVERNING BODIES THAT COMPRISE A METROPOLITAN AREA WHERE THAT AREA IS IN FACT ONE ECONOMIC AND SOCIAL UNIT.

A METROPOLITAN AREA WHICH IS IN FACT ONE ECNOMIC AND SOCIAL UNIT CAN ORDINARILY BE MORE EFFICIENTLY AND EFFECTIVELY GOVERNED BY ONE CENTRAL MUNICIPAL AUTHORITY THAN BY A MULTIPLICITY OF LOCAL GOVERNING BODIES.

32.

WHEN INDUSTRIAL GROWTH HAS TAKEN PLACE IMMEDIATELY ADJOINING OR IN CLOSE PROXIMITY TO THE BOUNDARIES OF THE CITY, THE PROPER AND BEST SUITED MUNICIPAL UNIT TO GOVERN AND CONTROL SUCH GROWTH IS THE CITY.

WHERE INDUSTRY HAS ESTABLISHED TO A SUBSTANTIAL EXTENT IMMEDIATELY ADJOINING THE BOUNDARIES OF THE CITY AND THE WORKERS IN SUCH INDUSTRY AND THEIR FAMILIES RESIDE WITHIN THE CITY, THE TAXES FROM SUCH INDUSTRY SHOULD BE COLLECTED BY THE CITY WHICH IS CALLED UPON TO FURNISH THE EDUCATIONAL AND NUMEROUS MUNICIPAL SERVICES ARISING FROM THE RESIDENCE OF THE WORKERS.

...THE CITY IS ENTITLED TO GROWING SPACE AND TO HAVE THIS SPACE IT IS NECESSARY THAT ITS BOUNDARIES SHOULD EXPEND INTO RURAL MUNICIPALITIES.

...WHERE THE AREA IMMEDIATELY ADJOINING THE CITY HAS TAKEN ON STRONG URBAN CHARACTERISTICS IT SHOULD BE UNDER THE AEGIS OF THE CITY PLANNING DEPARTMENT IN PRFERENCE TO A RURAL MUNICIPAL COUNCIL.

...IT WOULD CONSTITUTE NOTHING SHORT OF A METROPOLITAN TRAGEDY TO PERMIT A SECOND CITY TO GROW UP ON EDMONTON'S EAST BOUNDARY COMPLETELY INDEPENDENT OF, AND DUPLICATING, THE EXISTING CITY.

THE DIRECTION OF EXPANSION SHOULD TAKE ACCOUNT OF ECONOMY OF UTILITY EXTENSION AND THE "TREND OF DEVELOPMENT".

33.

SCHOOL AND MUNICIPAL BOUNDARIES SHOULD COINCIDE WHEREVER POSSIBLE.

13 (Slide 39)

THE HANSEN REPORT STRESSES THE FOLLOWING CONSIDERATIONS IN JUSTIFYING A SUBSTANTIAL BOUNDARY ADJUSTMENT WHICH ALSO, IN MY OPINION, PROVIDE DIRECTION FOR TODAY'S CONSIDERATION OF MEMTROPOLITAN AREA BOUNDARY DETERMINATION:

THE UNIT OF URBAN GOVERNMENT SHOULD CORRESPOND AS CLOSELY AS POSSIBLE WITH THE ECONOMIC AND SOCIAL BASE OF THE AREA.

PUBLIC SERVICES SHOULD BE PROVIDED ON A UNIFORM BASIS.

COORDINATED ADMINISTRATION IS REQUIRED TO PERMIT THE EFFICIENT PROVISION OF SERVICES AND PLANNING FOR THE WHOLE AREA.

URBAN GOVERNMENT SHOULD MAKE THE BEST USE POSSIBLE OF THE METROPOLITAN TAX BASE.

ONE URBAN GOVERNMENT UNIT WOULD MINIMIZE COMPLICATIONS IN THE PROVINCIAL GRANT STRUCTURE.

14 (Slide 40)

THE LOCAL AUTHORITIES BOARD IN ITS DECISION OF 1964 TO REJECT EDMONTON'S APPLICATION FOR A SUBSTANTIAL AREA OF THE COUNTY OF STRATHCONA, EXPRESSED CERTAIN CONCERNS.

IT MAY BE WORTHWHILE ALSO TO REFLECT ON THE BOARD'S

COMMENTS WHICH APPEAR RELEVANT TO EDMONTON'S APPLICATION:

THE BOARD WAS PARTICULARLY CONCERNED WITH THE EFFECT ON THE GENERAL WELFARE OF THE METROPOLITAN AREA, WERE IT TO ORDER INCLUSION OF THE LARGE INDUSTRIES INTO THE CITY.

34.

THE BOARD OBSERVED THAT THE AREA SOUGHT BY THE CITY WOULD RESULT IN A POSSIBLE LOSS TO STRATHCONA OF ABOUT 68.4% OF ITS TOTAL ASSESSMENT WITH A RESULTING SUBSTANTIAL INCREASE IN ITS MILL RATE WHILE THE CITY'S MILL RATE REDUCTION, AS A CONSEQUENT OF SUCH ANNEXATION, WOULD BE OF LITTLE SIGNIFICANCE.

TO ANNEX, FOR THE PURPOSE OF ATTEMPTING TO REDISTRIBUTE NET PORTIONS OF TAX REVENUES DID NOT APPEAR TO THE BOARD TO BE A SOUND PRINCIPLE.

THE BOARD OBSERVED THAT A PROVINCIAL

VARIATION OF A GRANT STRUCTURE MAY WELL ACCOMPLISH THE SAME END, IF NEED WERE SHOWN TO SO DO.

THE BOARD DEALT WITH THE INDUSTRIAL AREA ON EDMONTON'S EASTERLY BOUNDARY AS FOLLOWS:

"THE BOARD CONSIDERS, IN THE LIGHT OF EVIDENCE PLACED BEFORE IT, THAT IT IS HIGHLY DESIRABLE AND IN THE BEST INTERESTS OF THE WHOLE METROPOLITAN AREA, THAT A SUBSTANTIALLY RURAL IMAGE BE MAINTAINED FOR THE LARGE PETRO-CHEMICAL PLANTS AND THEIR DIRECTLY ASSOCIATED INDUSTRIES.

THIS MAY BEST BE MAINTAINED IN THE

PRESENT CIRCUMSTANCES, BY LEAVING THESE MAJOR PLANTS IN THE RURAL COUNTY AREA AND "ATMOSPHERE". URBANIZATION OF THESE MAJOR INDUSTRIAL DEVELOPMENTS COULD SERIOUSLY AFFECT FUTURE INDUSTRIAL DEVELOPMENT IN THE 15 EDMONTON AREA."

35.

THE BOARD DISPOSED OF THE ATTEMPTED ANNEXATION OF SHERWOOD PARK IN THESE TERMS:

"THE QUESTION OF THE ANNEXATION OF SHERWOOD PARK IS RESOLVED BY THE BOARD'S REFUSAL TO GRANT FULL ANNEXATION OF THE BUFFER ZONES AND INDUSTRIAL AREAS SURROUNDING THIS LARGE HAMLET.

THE COUNTY OF

STRATHCONA AND THE RESIDENTS OF SHERWOOD PARK STRONGLY OPPOSED ANNEXATION OF THIS SATELLITE 16 COMMUNITY TO THE CITY."

DURING THE COURSE OF OUR STUDIES, I HAVE INDICATED THAT CONSIDERABLE EFFORT WAS DIRECTED TOWARDS A REVIEW OF EXPERIENCES WITH BOUNDARY ADJUSTMENT IN OTHER METROPOLITAN AREAS OR JURISDICTIONS. AS A CONSEQUENCE, DURING OUR REVIEW, WE WERE ABLE TO IDENTIFY SOME AMERICAN STATUTORY AND JUDICIAL PRINCIPLES FOLLOWED IN ESTABLISHING THE NECESSITY FOR OR EXPEDIENCY OF ANNEXATION. A FEW OF THESE PRINCIPLES ARE PARTICULARLY RELEVANT TO EDMONTON'S APPLICATION.

(Slide 41) FIRST OF ALL, WE WERE ADVISED THAT VERY FREQUENTLY COURTS ARE TO CONSIDER FUTURE SERVICES TO BE RENDERED, NEEDS OF THE AREA PROPOSED TO BE ANNEXED, AND THE BEST INTERESTS OF BOTH THE REMAINING PORTIONS OF AREAS AFFECTED AND THE BEST INTERESTS OF RESIDENTS OR INTERESTS INCLUDED WITHIN THE BOUNDARY PROPOSAL.

36.

OTHER PRINCIPLES COMMONLY ACCEPTED IN AMERICAN PROCEEDINGS WERE FOUND TO INCLUDE:

ANNEXATION CANNOT BE PREDICTED SOLELY UPON THE NECESSITIES OR EXPEDIENCY OF THE APPLICANT - -IN MOST GASES THE CENTRAL CITY;

COURTS CONSIDER WHETHER THERE IS A LACK OF SUITABLE LAND FOR RESIDENTIAL OR INDUSTRIAL DEVELOPMENT;

THE COURTS CONSIDER WHETHER THERE IS A NEED OF THE PEOPLE IN THE AREA TO BE ANNEXED FOR SERVICES AND FUNCTIONS WHICH THE CITY COULD PROVIDE, BUT WHICH THE COUNTY PROVIDES INADEQUATELY.

THESE SERVICES AND

FUNCTIONS INCLUDE THE LIKES OF: HEALTH PROGRAMS; INCREASED POLICE AND FIRE PROTECTION; MODERN SEWAGE DISPOSAL FACILITIES; WATER SYSTEMS; SCHOOLS; PARKS; PLAYGROUNDS AND RECREATION PROGRAMS; EFFECTIVE LAND USE CONTROL; TRASH AND GARBAGE COLLECTION AND DISPOSAL; ETC.;

SOME AMERICAN JURISDICTIONS LEAN HEAVILY ON THE REQUIREMENT TO DEMONSTRATE A "COMMUNITY OF INTEREST". THIS IMPLIES THAT INSEPARABLE SOCIAL AND ECONOMIC FACTORS MAKE THE CITY AND THE FRINGE AREA AROUND IT AN UNINTERRUPTED HOMOGENEOUS COMMUNITY. THIS POINT CAN BE DEMONSTRATED BY SHOWING THAT THE DEMARCATION BETWEEN THE CITY AND THE FRINGE AREA IS POLITICAL RATHER THAN PHYSICAL AND ACTUAL; AND

ANOTHER AMERICAN FEATURE IS THE REQUIREMENT TO DEMONSTRATE A NEED FOR ORDERLY GROWTH AND DEVELOPMENT. THIS AREA INVITES AN EXAMINATION OF THE ADEQUACY OF PLANNING, ZONING AND REGULATION OF DEVELOPMENT IN THE FRINGE AREA ALONG WITH SUCH ITEMS AS ROADS, STREETS, UTILITIES, ETC.

37.

TWO OTHER PRINCIPLES ESTABLISHED BY AMERICAN STATUTES STRONGLY INFLUENCED THE DETERMINATION OF THE PROPOSED BOUNDARY.

THESE TWO PRINCIPLES ARE CLOSELY

INTERRELATED. THE FIRST INDICATES THAT A MUNICIPALITY HAS TO ACT RESPONSIBLY IN ONLY ANNEXING TERRITORY REQUIRED FOR URBAN DEVELOPMENT AND LONG RANGE PLANNING PURPOSES. THE SECOND RELATED PRINCIPLE COMES INTO EFFECT WHERE THE TERRITORY TO BE INCLUDED FOR LONG RANGE PLANNING AND URBAN DEVELOPMENT PURPOSES IS JUSTIFIED, BUT WOULD RESULT IN A SERIOUS DISRUPTION OF THE DELIVERY AND FINANCING OF MUNICIPAL SERVICES IN REMAINING PORTIONS OF THE MUNICIPALITY UNDER THESE CIRCUMSTANCES IT IS ACCEPTED THAT AFFECTED THE APPLICANT OR ANNEXING MUNICIPALITY HAS A FUNDAMENTAL RESPONSIBILITY TO ASSUME JURISDICTION OF ALL THE AFFECTED AREA, TO ENSURE THAT SERVICES CONTINUE TO BE PROVIDED TO THE REMAINING AREA.

DURING OUR INQUIRIES WE ALSO FELT IT WAS IMPORTANT TO REFLECT ON WHAT MIGHT BE CALLED "PSYCHOLOGICAL" OR EMOTIONAL FACTORS RELATED TO THE ANNEXATION PROCESS. A PROPOSAL FOR THE EXTENSION OF CITY'S BOUNDARIES USUALLY ELICITS OPPOSITION FROM MANY OF THE INDIVIDUALS RESIDING IN THE TERRITORY PROPOSED TO BE ANNEXED. THE CITIZEN'S RESPONSE IS GENERALLY TO OPPOSE ON THE BASIS THAT THEY DO NOT NEED THE CITY'S SERVICES AND THAT THEY FEAR THAT INCREASED TAXES WILL IMMEDIATELY FOLLOW ANNEXATION. (Slide 42) IT IS INTERESTING TO REFLECT UPON THE PUBLIC RESPONSE IN 1963 TO PROPOSALS FOR THE ANNEXATION OF JASPER PLACE, EVEN THOUGH THE TOWN HAD APPLIED TO BE ANNEXED TO THE CITY. THE LOCAL AUTHORITIES BOARD RECORDED THE NATURE OF RESPONSES AS FOLLOWS:

38.

"THE BOARD HEARD SUBMISSIONS AND RECEIVED BRIEFS FROM PERSONS OPPOSED TO THE ANNEXATION OF THE TOWN TO THE CITY. THESE OPINIONS INCLUDED THE FOLLOWING CLAIMS:

(A) THE TOWN'S OPERATIONS UNDER LOCAL COUNCIL AND STAFF IS HIGHLY EFFICIENT AND SERVICE WILL NOT REMAIN AT THE PRESENT HIGH LEVEL UPON ANNEXATION.

(B) THE TOWN'S SCHOOL FACILITIES ARE SUPERIOR TO THOSE IN THE CITY BY REASON OF A HIGH PERCENTAGE OF ABOVE AVERAGE TEACHERS BEING EMPLOYED IN THE TOWN'S SYSTEMS, AND THE TOWN HAS A MORE ADEQUATE SCHOOL BUS SYSTEM.

(D) THE TOWN'S RECREATION FACILITIES AND FINE COOPERATION AMONGST MUNICIPAL, SCHOOL, CHURCH AND COMMUNITY OFFICIALS HAS EFFECTED A VERY LOW RATE OF JUVENILE DELINQUENCY IN THE TOWN.

(E) THE TOWN' S

LATE SHOPPING HOURS CONTRIBUTE TO AFTER-HOUR

EMPLOYMENT OF HIGH SCHOOL CHILDREN.

(F) LOCAL REPRESENTATION MAY BE LOST IN THE ENLARGED CITY."17

39.

THE BOARD CONTINUED BY INDICATING:

"THE BOARD APPRECIATES THE SINCERE VIEWS HELD BY THOSE RESIDENTS OF THE TOWN WHO OPPOSE ANNEXATION AND WHO TOOK TIME TO WRITE TO THE BOARD AND EVEN ATTEND THE PUBLIC HEARINGS; HOWEVER, THE BOARD IS CONVINCED THAT THE GENERAL GOOD OF THE TWO COMMUNITIES WILL BEST BE SERVED BY ADMINISTRATION UNDER ONE MUNICIPAL AUTHORITY.

IT IS THE BOARD'S HOPE THAT THE STRONG COMMUNITY SPIRIT, WHICH IS SO EVIDENT IN THE TOWN, WILL CONTINUE TO THRIVE, DESPITE THE 18 DISAPPEARANCE OF THE 'ARTIFICIAL BOUNDARY'."

MY COMMENTS ON CRITERIA USED BY THE CITY IN THIS APPLICATION WOULD NOT BE COMPLETE WITHOUT REFERENCE TO THE MOST RECENT DECISION OF THE LOCAL AUTHORITIES BOARD IN WHICH A MAJOR ANNEXATION OF SOME 48 MILES WAS APPROVED FOR THE CITY OF CALGARY TO BRING ITS TOTAL AREA TO 210.87 SQUARE MILES (AS COMPARED TO EDMONTON'S 123.3). (Slide 43) THE BOARD, UNDER THE CHAIRMANSHIP OF DR. D.A. BANCROFT, RECITED THE FOLLOWING CRITERIA IN APPROVING CALGARY'S APPLICATION:

"THE BOARD, HAVING CONSIDERED THE EVIDENCE, BOTH ORAL AND WRITTEN, PRESENTED TO IT AT THE HEARING, HAS REACHED THE FOLLOWING CONCLUSIONS:

THAT THE BOARD ADOPTS AND SUPPORTS THOSE PRINCIPLES HEREINBEFORE ENUMERATED IN THE RECOMMENDATIONS OF THE ROYAL COMMISSION ON THE

40.

METROPOLITAN DEVELOPMENT OF CALGARY AND EDMONTON (MCNALLY REPORT) AS APPLICABLE TO THE SITUATION OF CALGARY.

THAT THE CITY OF CALGARY, BECAUSE OF MANY FACTORS, INCLUDING BUT NOT LIMITED TO, GEOGRAPHIC LOCATION; HISTORICAL AND EXISTING RELATIONS TO ENERGY RELATED INDUSTRIES AND TO THE SURROUNDING AGRICULTURAL COMMUNITY; THE PROJECTED SHORTAGE OF FOSSIL FUELS ELSEWHERE AND THE POTENTIAL TO DEVELOP ALBERTA SOURCES; THE PROVINCE'S POLITICAL STABILITY AND ECONOMIC CLIMATE; AND ITS ESTABLISHED HIGH STANDARD OF LIVING; HAVE ALL CONTRIBUTED TO MAKE CALGARY A DESIRABLE ENVIRONMENT WHICH WILL CONTINUE TO ATTRACT BUSINESS, INDUSTRY AND GROWING NUMBERS OF PEOPLE.

THAT THE CITY OF CALGARY HAS SATISFIED THE BOARD THAT ADDITIONAL LAND IS REQUIRED FOR FUTURE RESIDENTIAL AND INDUSTRIAL NEEDS OF THE CITY.

THAT EACH TERRITORIAL SECTOR APPLIED FOR, MAY BE READILY AND ECONOMICALLY SERVICED WITH UTILITIES AND TRANSPORTATION AND PROVIDE FOR THE LOGICAL EXPANSION OF THE CITY.

THAT THE AREA KNOWN AS GREENWOOD VILLAGE IS URBAN IN CHARACTER, PRESENTLY SERVED WITH UTILITIES FROM THE CITY OF CALGARY AND SHOULD LOGICALLY BE INCORPORATED THEREIN.

IT WILL BE RECALLED THAT THE PROVINCIAL CABINET, IN THE FINAL ANALYSIS, MUST APPROVE, VARY OR DISAPPROVE THE ORDERS OF ANNEXATION OF THE LOCAL AUTHORITIES

41.

BOARD.

IN THIS REGARD, IT MIGHT ALSO BE HELPFUL TO EXAMINE SOME OF THE

FACTORS CONSIDERED BY THE SPECIAL PROJECTS AND POLICY RESEARCH BRANCH, ALBERTA MUNICIPAL AFFAIRS IN RECOMMENDING THE AMALGAMATION OF FIVE COMMUNITIES IN THE CROWSNEST PASS. (Slide 44) THE COMMITTEE CONCLUDED ITS STUDIES WITH THIS STATEMENT:

"THE STATE OF LOCAL GOVERNMENT, MUNICIPAL FINANCE AND TAXATION, MUNICIPAL SERVICES, LAND USE AND FUTURE DEVELOPMENT IN THE AREA ARE ALL OF IMPORTANCE IN EVALUATING UNIFICATION. WHATEVER ONES FINAL JUDGEMENT MAY BE, THE FOLLOWING FACTORS SHOULD BE CONSIDERED:

- ALL OF THE PEOPLE IN THE PASS WOULD HAVE LOCAL GOVERNMENT INSTEAD OF 70%.

- THE COSTS AND BENEFITS OF EXISTING AND NEW DEVELOPMENT WOULD BE MORE EQUITABLY SHARED.

- IT WOULD ENABLE THE SCARCE DEVELOPABLE LAND RESOURCE TO BE USED MORE EFFICIENTLY.

- IT HAS THE POTENTIAL FOR A MORE CONCERTED DEVELOPMENT EFFORT.

- IT COULD DEAL MUCH MORE EFFECTIVELY WITH MANY REQUIRED PASS WIDE SERVICES WHICH UNDER PRESENT ARRANGEMENTS DEPEND ON INTER-MUNICIPAL AGREEMENTS.

42.

- THE ADMINISTRATION COULD BE AUGMENTED WITH CERTAIN PROFESSIONAL SERVICES, MAKING THE AREA LESS DEPENDENT ON OUTSIDE SERVICES.

- THE CONSOLIDATION OF THE ASSESSMENT BASE OF THE ENTIRE AREA, TOGETHER WITH TRANSITIONAL GRANT ASSISTANCE WOULD PERMIT AN UPGRADING OF SOME OF THE SERVICES, OR IN SPEEDING UP THE TIMING OF IMPROVEMENTS.

- MORE GENERALLY IT WOULD STRENGTHEN THE CAPACITY OF THE AREA TO DEAL WITH EITHER ANY PERIODIC RECESSIONS WHICH MAY OCCUR, OR TO DEAL WITH ANY RAPID GROWTH.

THESE THEN ARE AMONG MANY OF THE FACTORS TAKEN INTO ACCOUNT IN CROWSNEST PASS AMALGAMATION.

THESE FACTORS IN OUR OPINION, APPLY EQUALLY TO THE CURRENT

EDMONTON SITUATION.

INDEED, AS THE AUTHORS OF THE CROWSNEST PASS STUDIES

CONCLUDE, AND I QUOTE:

"IT IS PROBABLE THAT A BALANCED JUDGEMENT IS MORE LIKELY TO BE REACHED BY CONSIDERING THE SUM OF ADVANTAGES AND DISADVANTAGES RATHER THAN CONCENTRATING ON ONE ISSUE AND EXCLUDING ALL OTHERS. IN THE END, THE PRIMARY ISSUE IS NOT BOUNDARIES, OR RELATIVE MUNICIPAL ASSETS, BUT 21 THE WELL BEING OF THE PEOPLE IN THE...AREA."

I WOULD SUBMIT THAT THIS STATEMENT SHOULD APPLY IN YOUR CONSIDERATION OF THE EDMONTON PROPOSAL.

43.

IT IS ALSO INTERESTING TO NOTE THAT THE SUMMARY CROWSNEST AMALGAMATION PASS REPORT CONCLUDES WITH A STATEMENT AS FOLLOWS:

"THE RELATIVELY SHORT DISTANCE SEPARATING THE COMMUNITIES MAKES THE AREA, VIRTUALLY, A SINGLE HOUSING, LABOR AND COMMERCIAL, MARKET AREA. THE FACT THAT RESIDENCES MAY BE CONCENTRATED IN ONE MUNICIPALITY AND PLACE OF WORK IN ANOTHER RAISES MUNICIPAL FINANCE PROBLEMS, SINCE REVENUES ACCRUE TO ONE AND EXPENDITURES TO ANOTHER. MORE IMPORTANTLY THIS RESULTS IN SIGNIFICANT DIFFERENCES IN LEVELS OF SERVICE. BECAUSE OF FACTORS IN THE AREA DETERMINING THE LOCATION OF INDUSTRIAL AND COMMERCIAL DEVELOPMENT THESE DISCREPANCIES ARE LIKELY TO INCREASE WITH TIME UNDER PRESENT LOCAL GOVERNMENT ARRANGEMENTS.

FOR YOUR INFORMATION, ON NOVEMBER 3, 1978, THE PROVINCIAL GOVERNMENT OBTAINED ROYAL ASSENT TO THE CROWSNEST PASS MUNICIPAL UNIFICATION ACT. AS ASIDE, I WOULD NOTE THAT WHAT BEGAN AS THE "CROWSNEST PASS AMALGAMATION STUDY" LATER BECAME AN "UNIFICATION STUDY" AND FINALLY AN UNIFICATION ACT: CONSEQUENTLY A NEW WORD IN THE REALM OF BOUNDARY ADJUSTMENT. THE THIRD OBJECTIVE OF EDMONTON CITY COUNCIL'S PETITION MARCH 21, 1979 TO THIS BOARD HIGHLIGHTS OUR THINKING IN THIS REGARD:

"TO BRING TOGETHER, UNIFY, MERGE, OR INTEGRATE WITH THE CITY OF EDMONTON THOSE PERIPHERAL MUNICIPALITIES OR PARTS THEREOF WHICH DEMONSTRATE AN INTERDEPENDENCE WITH THE CITY FOR GROWTH, DEVELOPMENT 23 AND THE PROVISION OF SOME OR ALL ESSENTIAL MUNICIPAL SERVICES."

44.

A HOST OF OTHER CRITERIA INFLUENCING BOUNDARY SELECTION AND OUR FINAL PROPOSALS ON GOVERNMENT STRUCTURE WERE IDENTIFIED AND EMPLOYED.

I WILL VERY

BRIEFLY DESCRIBE THESE TO YOU.

THE POTENTIAL IMPLICATIONS OF ANY BOUNDARY ADJUSTMENT OR THE CITY'S ABILITY TO EFFECTIVELY DELIVERY ESSENTIAL MUNICIPAL SERVICES HAS BEEN EXAMINED AND WILL BE ELABORATED UPON BY OUR CONSULTANTS SHORTLY.

(Slide 45) OTHER FACTORS EXAMINED IN OUR EFFORTS TO AN APPROPRIATE FUTURE BOUNDARY FOR THE CITY INCLUDED:

THE NEED FOR AN INTEGRATED APPROACH TO THE MANAGEMENT OF GROWTH AND DEVELOPMENT IN THE METROPOLITAN AREA.

(Slide 46) THE CITY'S REQUIREMENT FOR ADDITIONAL LANDS TO ACCOMMODATE PROJECTED RESIDENTIAL AND INDUSTRIAL DEVELOPMENT INCLUDING PROVISIONS FOR CONSUMER CHOICE, FLEXIBILITY TO ACHIEVE AN EFFECTIVE SETTLEMENT PATTERN, DEVELOPER COMPETITION AND RECOGNITION OF DEVELOPMENT CONSTRAINTS.

(Slides 47, 48) CONSIDERATION OF THE IMPACT OF BOUNDARY ADJUSTMENT ON PLANS AND POLICIES OF THE PROVINCIAL GOVERNMENT, THE EDMONTON REGIONAL PLANNING COMMISSION AND AREA MUNICIPALITIES, INCLUDING:

- FOR USE AND MANAGEMENT OF THE RESTRICTED DEVELOPMENT AREAS;

- IMPLEMENTATION OF THE EDMONTON REGIONAL UTILITY STUDY;

45.

- PROVINCIAL GOVERNMENT OBJECTIVES RELATED TO ECONOMIC DECENTRALIZATION AND DIVERSIFICATION;

- EXISTING MUNICIPAL GENERAL PLANS, COMPREHENSIVE LAND USE PLANS, AND OTHER LAND DEVELOPMENT APPROVALS;

- THE REGIONAL PLANNING AUTHORITY'S GROWTH STRATEGY, DRAFT REGIONAL PLAN AND ANNEXATION GUIDELINES.

THE RELATIONSHIP AND EFFECT OF THE PROPOSED ANNEXATION ON ALL AFFECTED PARTIES WITH PARTICULAR REFERENCE TO RESIDENTS AND INDUSTRIAL CONCERNS LOCATED IN THE AREA PROPOSED FOR ANNEXATION, DIRECTLY AFFECTED MUNICIPALITIES, AND OTHER INTERESTED PARTIES SUCH AS CALGARY POWER LTD., ALBERTA GOVERNMENT TELEPHONES AND THE VARIOUS SCHOOL BOARDS. (Slides 49, 50) THE FINANCIAL CAPABILITY OF THE CITY TO ASSUME THE OBLIGATIONS THAT MUST BE INCURRED AS A CONSEQUENCE OF ANNEXATION.

FINANCIAL GAIN OR LOSS IN RELATION TO THE BEST INTERESTS OF ALL AFFECTED PARTIES.

REDISTRIBUTION OF METROPOLITAN AREA ASSETS AND LIABILITIES; AND

THE ABILITY OF THE CITY TO RAISE CAPITAL FUNDS, PROVIDE ORDERLY FISCAL PLANNING AND BUDGETING AND ACHIEVE AN ADEQUATE BASE TAX IN AN EXPANDED BOUNDARY.

46.

PRESENT PATTERN OF PHYSICAL DEVELOPMENT WITHIN THE PROPOSED BOUNDARY AND THE CITY INCLUDING RESIDENTIAL, INDUSTRIAL, COMMERCIAL, AGRICULTURAL AND INSTITUTIONAL LAND USES. (Slide 51) OUTSTANDING ANNEXATION APPLICATIONS SUBMITTED TO THE PROVINCIAL GOVERNMENT INVOLVING LANDS IN THE EDMONTON METROPOLITAN AREA.

PRESENT GOVERNMENT SERVICES BEING PROVIDED IN THE CITY OF EDMONTON AND THE AREA PROPOSED FOR ANNEXATION AND THE ABILITY OF THE CITY TO EXTEND THESE SERVICES, PRTICULARLY UTILITY, TRANSPORTATION, SOCIAL AND PROTECTIVE SERVICES. (Slide 52) ENVIRONMENTAL CONSIDERATIONS POTENTIAL IMPACT ON WASTE DISPOSAL, STORM WATER MANAGEMENT, AGRICULTURAL AND ENVIRONMENTALLY SENSITIVE ACTIVITIES. (Slide 53) BOUNDARY REVIEW AND RATIONALE (Slides 54, 55) MR. CHAIRMAN, THIS CONCLUDING PORTION OF MY PRESENTATION IS INTENDED TO PROVIDE A BROAD OVERVIEW OF THE AREA SUBJECT TO THIS ANNEXATION APPLICATION AND THE BOUNDARY RATIONALIZATION PROCESS.

TO PROVIDE THIS OVERVIEW, AND TO

FACILITATE FUTURE DISCUSSION, THE AREA HAS BEEN DIVIDED INTO 18 SECTORS.

IS MY INTENTION TO DISCUSS THE DEVELOPMENT PATTERN IN EACH SECTOR AND EXPLAIN THE RATIONALE FOR EACH SECTOR'S INCLUSION IN THE CITY'S BOUNDARY PROPOSAL. (Slides 56, 57, 58) SECTOR I INCLUDES THOSE LANDS IN THE NORTHWEST LOCATED BETWEEN THE EXISTING CITY BOUNDARY AND THE INNER LIMIT OF THE EDMONTON RESTRICTED DEVELOPMENT AREA.

47.

JURISDICTION OVER THE LANDS IN THIS AREA IS SPLIT BETWEEN THE COUNTY OF PARKâ&#x20AC;&#x201D; LAND AND THE M. D. OF STURGEON.

EXISTING LAND USE IS MIXED AND INCLUDES

AGRICULTURAL AND VACANT LANDS, SOME COUNTRY RESIDENTIAL PARCELS, INSTITUTIONAL USES AND THE SPEEDWAY PARK FACILITY. IN ADDITION, INDUSTRIAL DEVELOPMENT SUCH AS THE INLAND CEMENT FACILITY AND THE C. N. BISSEL YARDS HAS TAKEN PLACE IN THE AREA WEST OF HIGHWAY 2 AND THERE ARE SOME COMMERCIAL USES EVIDENT ADJACENT TO HIGHWAY 2. TO A MORE LIMITED EXTENT COMMERCIAL DEVELOPMENT HAS OCCURRED NORTH OF 137 AVENUE AND INCLUDES SUCH FACILITIES AS LEON'S FURNITURE WAREHOUSE. (Slide 59) THERE ARE ESSENTIALLY THREE REASONS FOR INCLUDING THESE LANDS WITHIN THE RECOMMENDED APPLICATION AREA. FIRSTLY, THE AREA REPRESENTS A LOGICAL PLANNING UNIT AND SHOULD, IN ITS ENTIRETY, BE INCLUDED UNDER ONE MUNICIPAL JURISDICTION IN ORDER TO FACILITATE RATIONALE LAND USE, UTILITY AND TRANSPORTATION PLANNING. MORE SPECIFICALLY, ITS INCLUSION WILL ALLOW THE CITY TO PLAN THE PHASING AND DEVELOPMENT OF THESE LANDS, PLAN AND INVEST IN THE TRANSPORTATION AND UTILITY FACILITIES WITH CONFIDENCE AND PROTECT THE AREA FROM PREMATURE OR PREJUDICIAL DEVELOPMENT.

SECONDLY, THE TERRITORY REPRESENTS A LOGICAL EXTENSION OF THE BOUNDARY OF THE CITY OF EDMONTON AND MAY BE READILY AND ECONOMICALLY SERVICED WITH UTILITIES GIVING THE AREA GOOD DEVELOPMENT POTENTIAL.

THIRDLY, IT MUST ALSO BE NOTED THAT PROPERTY OWNERS IN THE AREA HAVE RECOGNIZED THE NECESSITY OF INCLUDING THIS SECTOR WITHIN THE CITY AS INDICATED BY TWO PRIVATELY INITIATED ANNEXATION APPLICATIONS INVOLVING LANDS IN THIS AREA WHICH WERE SUBMITTED TO THE LOCAL AUTHORITIES BOARD IN 1978 AND 1979. (Slides 60, 61, 62)

48.

SECTOR 2 CONSISTS OF THE CITY OF ST. ALBERT AND CERTAIN LANDS INCLUDED ON THE IMMEDIATE PERIPHERY OF THIS COMMUNITY. THE CITY OF ST. ALBERT COVERS APPROXIMATELY ONE-THIRD OF THE SECTOR WITH THE BALANCE ENCOMPASSING AGRICULTURAL LANDS, COUNTRY RESIDENCES AND THE POUNDMAKER LODGE.

THE RATIONALE FOR

INCLUDING THIS AREA RELATES DIRECTLY TO THE CRITERIA AND PRINCIPLES ADVANCED BY THE MCNALLY COMMISSION REPORT AND SUBSEQUENTLY REAFFIRMED IN THE HANSON STUDY, FUTURE OF THE CITY REPORT AND THE ALBERTA LAND USE FORUM. THE THREE OVERRIDING PRINCIPLES AS EXPRESSED BY THE MCNALLY ROYAL COMMISSION RELATE TO FISCAL EQUITY, COMMUNITY OF INTEREST AND MORE EFFECTIVE GOVERNMENT DECISION MAKING. MORE SPECIFICALLY, THE COMMISSION STATED THAT---AND I QUOTE--(Slide 63) "IT IS UNJUST AND INEQUITABLE THAT WIDE VARIATIONS IN THE TAX BASE SHOULD EXIST AMONG THE LOCAL GOVERNING BODIES THAT COMPRISE A METROPOLITAN AREA WHERE THAT AREA IS IN FACT ONE ECONOMIC AND SOCIAL 24 UNIT. ,,

"A METROPOLITAN AREA WHICH IS IN FACT ONE ECONOMIC AND SOCIAL UNIT CAN ORDINARILY BE MORE EFFICIENTLY AND EFFECTIVELY GOVERNED BY ONE CENTRAL MUNICIPAL AUTHORITY THEN BY A MULTIPLICITY OF LOCAL GOVERNING 25 BODIES. ,,

"...WHERE THE AREA IMMEDIATELY ADJOINING THE CITY HAS TAKEN ON STRONG URBAN CHARACTERISTICS IT SHOULD BE UNDER THE AEGIS OF THE CITY 26 PLANNING DEPARTMENT IN PREFERENCE TO A RURAL MUNICIPAL COUNCIL."

IN ADDITION TO THESE PRINCIPLES, IT IS CONSIDERED DESIRABLE AND NECESSARY TO INCLUDE CERTAIN UNDEVELOPED LANDS ADJACENT TO ST. ALBERT IN ORDER TO EXERCISE

49.

PERIPHERIAL PLANNING CONTROL AND TO PROVIDE SUITABLE LAND TO ACCOMMODATE FUTURE URBAN EXPANSION IN THIS AREA. WITH RESPECT TO THIS LATTER POINT, IT MUST BE RECOGNIZED THAT 2 PRIVATELY INITIATED ANNEXATIONS TO THE NORTH OF ST. ALBERT WERE RECENTLY APPROVED BY THE BOARD AND CABINET. AS WELL, A DECISION IS PENDING ON THE ST. ALBERT ANNEXATION INVOLVING APPROXIMATELY 5,000 ACRES TO THE SOUTH AND EAST OF THE CURRENT ST. ALBERT CORPORATE LIMITS. (Slides 65, 66, 67, 68) SECTOR 3 IS GENERALLY LOCATED JUST NORTH OF THE CITY BETWEEN THE CANADIAN FORCES BASE AT NAMAO AND THE CITY OF ST. ALBERT. THE AREA IS PRIMARILY BEING USED FOR AGRICULTURAL PURPOSES BUT SOME SCATTERED COUNTRY RESIDENTIAL DEVELOPMENT HAS TAKEN PLACE. THE PRIME PURPOSE FOR RECOMMENDING THE ANNEXATION OF THIS AREA IS TO PROVIDE THE CITY WITH LONG TERM PLANNING CONTROL TO PROTECT THE PERIPHERY OF THE CITY AND THE NAMAO AIR BASE FROM INCOMPATIBLE DEVELOPMENT. THE ANNEXATION OF THIS LAND WOULD ALSO ROUND OUT WHAT WOULD OTHERWISE BE A SOMEWHAT CONFUSING AND UNDESIRABLE BOUNDARY PATTERN IN THE AREA. (Slides 70, 71, 72) SECTOR 4 ENCOMPASSES C.F.B. NAMAO WHICH OCCUPIES APPROXIMATELY 6,400 ACRES AND INCLUDES A POPULATION OF ABOUT 2,000. WHILE THE CITY COULD NOT EXERCISE ANY DIRECT CONTROL OVER THE LANDS INCLUDED WITHIN THE BASE GIVEN ITS FEDERAL GOVERNMENT STATUS, THE INCLUSION OF THE BASE WITHIN THE BOUNDARY IS RECOMMENDED FOR A NUMBER OF REASONS.

THE BASE IS GEOGRAPHICALLY LOCATED IMMEDIATELY ADJACENT TO THE CITY AND ESSENTIALLY REPRESENTS AN URBAN DENSITY DEVELOPMENT INVOLVING URBAN RELATED ACTIVITIES. THERE IS A STRONG COMMUNITY OF INTEREST BETWEEN THE RESIDENTS OF THE BASE AND THE CITY OF EDMONTON. FOR EXAMPLE, THEY UTILIZE CITY SCHOOLS ON A TUITION FEE BASIS AND TAKE ADVANTAGE OF THE MANY METROPOLITAN SCALE CULTURAL

50.

AND RECREATIONAL FACILITIES PROVIDED BY THE CITY.

MOREOVER, THE BASE IS,

UNDER JOINT AGREEMENT, CURRENTLY SERVED WITH CITY WATER AND SEWAGE DISPOSAL SERVICE.

FINALLY, MR. CHAIRMAN, IT SHOULD BE NOTED THAT THERE IS A SPLIT IN THE JURISDICTION OF THE CANADIAN FORCES BASE OPERATIONS IN THE EDMONTON AREA AT THE PRESENT TIME. MORE SPECIFICALLY, THE GRIESBACH FACILITY, A FUNCTIONAL COMPONENT OF THE BASE, IS UNDER EMDONTON JURISDICTION WHILE THE BASE ITSELF IS WITHIN THE MUNICIPAL DISTRICT OF STURGEON. WE HAVE BEEN ADVISED THAT BASE PERSONNEL FEEL THAT FROM AN ADMINISTRATIVE PERSPECTIVE IT WOULD BE MORE EFFICIENT TO DEAL WITH ONE MUNICIPALITY RATHER THAN TWO. (Slides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

THE CITY FEELS THAT THE AREA REPRESENTS A LOGICAL PLANNING UNIT--FORMS A LOGICAL AND FUNCTIONAL EXTENTION OF THE URBAN FABRIC OF THE CITY AS IT CAN ACCOMMODATE THE ORDERLY EXTENSION OF MAJOR ROADWAY AND UTILITY FACILITIES--AND DISPLAYS GOOD DEVELOPMENT POTENTIAL GIVEN THE AVAILABILITY OF URBAN SERVICES AND THE AREAS PROXIMITY TO THE NORTHEAST LIGHT RAPID TRANSIT LINE. (Slides 76, 77, 78, 79)

51. SECTOR 6 IS GENERALLY BOUNDED ON THE WEST BY C.F.B. NAMAO, ON THE SOUTH BY THE INNER LIMIT OF THE RESTRICTED DEVELOPMENT AREA AND ON THE EAST BY THE NORTH SASKATCHEWAN RIVER.

THE AREA IS PRIMARILY USED FOR AGRICULTURAL PURPOSES

ALTHOUGH THERE ARE SOME SCATTERED SMALL HOLDINGS AND COUNTRY RESIDENCES. IN ADDITION, THE AREA INCLUDES THE EVERGREEN MOBILE HOME PARK, THE ST. ALBERT SEWAGE LAGOONS, AND VARIOUS INSTITUTIONAL USES INCLUDING THE ALBERTA HOSPITAL AT OLIVER AND THE HENWOOD TREATMENT CENTRE.

THE PRIME PURPOSE FOR INCLUDING THIS LAND IS TO ENSURE THAT THE CITY CAN EXERCISE SUITABLE PLANNING CONTROL TO PROTECT C.F.B. NAMAO FROM UNDESIRABLE ENCROACHMENT AND TO ENSURE THAT PREMATURE OR PREJUDICIAL DEVELOPMENT DOES NOT TAKE PLACE ALONG THE HIGHWAY 15 CORRIDOR. THE NEED FOR CITY CONTROL IN THIS AREA IS ESSENTIAL GIVEN THE SIGNIFICANT DEVELOPMENT ACTIVITY OCCURRING IN THE FORT SASKATCHEWAN AREA AND THE RESULTING PRESSURE THAT THIS WILL EXERT ON THE CORRIDOR, PARTICULARLY ADJACENT TO THE CURRENT CITY BOUNDARY. FINALLY, IT IS SUBMITTED THAT THE AREA HAS GOOD LONG TERM DEVELOPMENT POTENTIAL FOR RESIDENTIAL AND ASSOCIATED USES. (Slides 80, 81, 82, 83) SECTOR 7 IS BOUNDED BY THE INNER LIMITS OF THE RESTRICTED DEVELOPMENT AREA ON THE WEST, BASE LINE ROAD IN THE SOUTH, HIGHWAY 21 ON THE EAST AND THE NORTH SASKATCHEWAN RIVER ON THE NORTH.

MUCH OF THE LAND IN THIS SECTOR IS VACANT OR USED FOR AGRICULTURAL PURPOSES. SOME INDUSTRIAL DEVELOPMENT AND THE CITY OPERATED BREMNER INDUSTRIAL LAGOON, CLOVER BAR SLUDGE LAGOON, AND CLOVER BAR DISPOSAL SITE ARE ALSO LOCATED IN THIS AREA AS WELL AS THE C.N. CLOVER BAR YARDS. ADDITIONALLY, A SITE IN THIS SECTOR HAS TENATIVELY BEEN IDENTIFIED IN THE CITY'S RAILWAY RELOCATION STUDY

59.

TO ACCOMMODATE THE RELOCATION OF THE CANADIAN PACIFIC RAILWAY FACILITIES CURRENTLY LOCATED IN THE SOUTHERN PORTION OF THE CITY. WITH THE EXTENSION OF CITY UTILITY SERVICES, INCLUSION OF THIS SECTOR IS CONSIDERED DESIRABLE TO PROVIDE SUITABLE LAND FOR LONG TERM INDUSTRIAL EXPANSION ADJACENT TO THE CANADIAN PACIFIC RAILWAY LINE.

ADDITIONALLY, THE WHOLE AREA SHOULD BE

INCLUDED UNDER THE CITY'S JURISDICTION FOR CONTROL PURPOSES AND TO FACILITATE THE ORDERLY EXPANSION OF THE EDMONTON OPERATED SEWAGE AND SOLID WASTE DISPOSAL SITES. (Slides 84, 85, 86, 87) SECTOR 8 IS BOUNDED BY THE CITY BOUNDARY ON THE WEST AND THE INNER LIMIT OF THE RESTRICTED DEVELOPMENT AREA ON THE NORTH, EAST AND SOUTH.

SUB-SECTOR A

ENCOMPASSES THE MAJOR INDUSTRIAL CONCENTRATION LOCATED IN THE WESTERN PORTION OF THE COUNTY OF STRATHCONA INCLUDING CELANESE CANADA LTD., FIBERGLASS CANADA LTD., INTER-PROVINCIAL PIPELINE, 0. HANLON CANADA LTD., TRANSMOUNTAIN OIL PIPELINE, GULF OIL CANADA LTD., IMPERIAL OIL LTD., BUILDING PRODUCTS OF CANADA LTD., TEXACO CANADA LTD., CANADIAN INDUSTRIES LTD., AND STELCO.

THE MAPLE

RIDGE MOBILE HOME PARK IS ALSO LOCATED IN THIS SUB-SECTOR IN THE SOUTH. SUB-SECTOR B, TO THE SOUTH OF WHITEMUD FREEWAY MAINLY ENCOMPASSES VACANT RURAL LAND.

THE RATIONALE FOR INCLUDING SUB-SECTOR A IS THE SAME AS EXPRESSED FOR SECTOR 2 (ST. ALBERT) AND SECTOR 9 (SHERWOOD PARK) WHICH HINGES UPON THE CONCEPTS OF FISCAL EQUITY, COMMUNITY OF INTEREST AND EFFECTIVE GOVERNMENT DECISION MAKING. IN ADDITION TO THE MCNALLY COMMISSION PRINCIPLES WHICH I QUOTED WHILE DISCUSSING SECTOR 2, TWO OTHER CRITERIA EXPRESSED IN THE MCNALLY DOCUMENTATION SPECIFICALLY RELATED TO PERIPHERAL INDUSTRIAL DEVELOPMENT ARE WORTH QUOTING:

53.

"WHEN INDUSTRIAL GROWTH HAS TAKEN PLACE IMMEDIATELY ADJOINING OR IN CLOSE PROXIMITY TO THE BOUNDARIES OF THE CITY, THE PROPER AND BEST SUITED MUNICIPAL UNIT TO GOVERN AND CONTROL SUCH GROWTH IS THE 27 CITY. ,,

"...WHERE INDUSTRY HAS ESTABLISHED TO A SUBSTANTIAL EXTENT IMMEDIATELY ADJOINING THE BOUNDARIES OF THE CITY AND THEIR FAMILIES RESIDE WITHIN THE CITY, THE TAXES FROM SUCH INDUSTRY SHOULD BE COLLECTED BY THE CITY WHICH IS CALLED UPON TO FURNISH THE EDUCATIONAL AND NUMEROUS MUNICIPAL SERVICES ARISING FROM THE RESIDENCE OF THE WORKERS." 28

SECTOR 8 SHOULD ALSO BE INCLUDED IN THAT IT:

CONSISTS OF TWO PLANNING UNITS WHICH SHOULD LOGICALLY COME UNDER THE CITY'S JURISDICTION GIVEN THEIR PROXIMITY TO THE CITY, THE URBAN NATURE OF THE DEVELOPMENT THAT HAS ALREADY TAKEN PLACE IN SUB-SECTOR A AND THE EXCELLENT DEVELOPMENT POTENTIAL OF SUB- SECTOR B;

WOULD PROVIDE ADDITIONAL LANDS TO ACCOMMODATE INDUSTRIAL DEVELOPMENT NORTH OF THE WHITEMUD FREEWAY IN SUB-AREA A, AND THE RESIDENTIAL EXTENSION OF MILLWOODS SOUTH OF WHITEMUD FREEWAY IN SUB-AREA B;

CURRENTLY SUB-AREA A RECEIVES CITY SEWAGE DISPOSAL SERVICE.

THIS

SERVICE, IN CONJUNCTION WITH THE FUTURE EXTENSION OF WATER, WOULD PERMIT THE ACCOMMODATION OF MORE INTENSIVE DEVELOPMENT IN THE AREA AND HENCE ENSURE A MORE EFFECTIVE UTILIZATION OF LAND; AND

54.

REQUIRES A SUBSTANTIALLY IMPROVED STORM DRAINAGE SYSTEM TO RESOLVE RUN-OFF PROBLEMS EVIDENT IN THE AREA. (Slides 88, 89, 90) SECTOR 9 CONSISTS OF THE HAMLET OF SHERWOOD PARK AND CERTAIN ADDITIONAL LANDS IMMEDIATELY TO THE EAST OF THE COMMUNITY. THE RATIONALE FOR INCLUDING THESE LANDS IS THE SAME AS THAT EXPRESSED ABOVE FOR THE INCLUSION OF THE CITY OF ST. ALBERT.

TO REITERATE, THE RATIONALE REVOLVES AROUND CONCEPTS OF EQUITY,

COMMUNITY OF INTEREST AND INTEGRATED GOVERNMENT DECISION MAKING AS EXPRESSED IN THE MCNALLY, HANSON, FUTURE, AND ALBERTA LAND USE FORUM REPORTS.

ADDITIONALLY, IT MUST BE RECOGNIZED THAT THE RECENTLY APPROVED COUNTY OF STRATHCONA GENERAL PLAN RECOMMENDS THE SIGNIFICANT EXPANSION OF SHERWOOD PARK NORTH OF BASE LINE ROAD TO ACCOMMODATE FUTURE RESIDENTIAL DEVELOPMENT. IT IS SUBMITTED THAT EXPANSION IN THIS DIRECTION IS UNDESIRABLE GIVEN THE PROXIMITY OF THE HEAVY INDUSTRIAL USES LOCATED IN THE REFINERY ROW AREA. ACCORDINGLY, IN WOULD BE DESIRABLE FOR THE CITY MUST ACQUIRE DIRECT JURISDICTION TO ENSURE A MORE DESIRABLE LAND USE PATTERN AND TO PROTECT THE LONG TERM INTEGRITY OF INDUSTRIAL USES IN THE GENERAL VICINITY.

FINALLY, THIS SECTOR INCLUDES LANDS TO THE EAST OF THE EXISTING COMMUNITY FOR CONTROL PURPOSES AND TO PROVIDE SUITABLE LAND FOR FUTURE EXPANSION ON A LIMITED BASIS. (Slides 91, 92, 93) SECTOR 10 IS DELINEATED BY THE SOUTHERN BOUNDARY OF SHERWOOD PARK ON THE NORTH, THE HIGHWAY 21 ALIGNMENT ON THE EAST, HIGHWAY 14 ON THE SOUTH AND THE INNER LIMIT OF THE RESTRICTED DEVELOPMENT AREA ON THE WEST. WHILE CERTAIN LANDS IN THIS AREA ARE STILL UTILIZED FOR AGRICULTURAL PURPOSES, THE SECTOR HAS BEEN EXTENSIVELY DEVELOPED FOR COUNTRY RESIDENTIAL PURPOSES.

55.

IT IS SUBMITTED THAT THIS SECTOR SHOULD BE INCLUDED WITHIN THE RECOMMENDED BOUNDARY FOR ESSENTIALLY TWO REASONS. FIRSTLY, THE RESIDENTS OF THIS SECTOR HAVE A STRONG COMMUNITY OF INTEREST WITH THE HAMLET OF SHERWOOD PARK AND THE CITY OF EDMONTON IN THAT THEY ARE HEAVILY DEPENDENT UPON THE SERVICES PROVIDED BY THESE COMMUNITIES.

SECONDLY, THE CITY REQUIRES CONTROL IN THIS AREA TO

RESTRICT THE FURTHER PROLIFERATION OF COUNTRY RESIDENCE DEVELOPMENT IN THE AREA. THIS IS OF PARTICULAR CONCERN IN LIGHT OF NEW PROVINCIAL GOVERNMENT LEGISLATION WHICH PERMITS SUBSTANTIALLY SMALLER LOT SIZES FOR THIS TYPE OF DEVELOPMENT. (Slides 94, 95, 96, 97) SECTOR 11 IS BOUNDED BY HIGHWAY 2 ON THE WEST, THE EXISTING CITY BOUNDARY AND HIGHWAY 14 ON THE NORTH, HIGHWAY 21 ON THE EAST AND THE COUNTY OF STRATHCONA BOUNDARY ON THE SOUTH. THE COMMONWEALTH SHOOTING RANGE IS LOCATED IN THIS AREA AND SOME COUNTRY RESIDENCE DEVELOPMENT HAS OCCURRED. HOWEVER, THE VAST MAJORITY OF THE LAND IS USED FOR AGRICULTURAL PURPOSES.

THE SECTOR, AS WITH SECTOR 12 TO THE WEST OF HIGHWAY 2, HAS PRIMARILY BEEN INCLUDED FOR CONTROL PURPOSES TO PROTECT THE AREA FROM PREMATURE DEVELOPMENT AND TO PROVIDE THE CITY WITH SUITABLE LAND TO ACCOMMODATE LONG TERM DEVELOPMENT. WITH RESPECT TO THIS LATTER POINT, THE MCNALLY ROYAL COMMISSION STATED THAT, AND I QUOTE, "...THE CITY IS ENTITLED TO GROWING SPACE AND TO HAVE THIS SPACE IT IS NECESSARY THAT ITS BOUNDARIES SHOULD EXPAND INTO RURAL MUNICIPALI29 TIES." (Slides 98, 99, 100) SECTOR 12 IS DELINEATED BY THE NORTH SASKATCHEWAN RIVER ON THE WEST, THE INNER LIMIT OF THE RESTRICTED DEVELOPMENT AREA ON THE NORTH, HIGHWAY 2 ON THE EAST, AND THE COUNTY OF STRATHCONA BOUNDARY ON THE SOUTH.

WHILE AGRICULTURAL

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PURSUITS REPRESENT THE DOMINANT LAND USE IN THE AREA, THIS SECTOR ALSO CONTAINS A DOWNHILL SKI FACILITY, A GOLF AND COUNTRY BLUC AND A NUMBER OF COUNTRY RESIDENCES.

THIS SECTOR HAS BEEN INCLUDED IN THE PROPSOED BOUNDARY BECAUSE IT HAS EXCELLENT POTENTIAL TO ACCOMMODATE THE LONG TERM RESIDENTIAL DEVELOPMENT OF THE CITY.

SUCH DEVELOPMENT WOULD BE COMPLIMENTED BY THE RECREATIONAL

CAPABILITY OF THE NORTH SASKATCHEWAN RIVER AND THE WHITEMUD AND BLACKMUD CREEKS. MOREOVER, URBAN EXPANSION IN THIS AREA IS NOT HINDERED BY EXISTING DEVELOPMENT OR FRAGMENTED OWNERSHIP GIVEN THE LARGE PARCEL SIZES IN THE AREA. (Slides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

THE ENTIRE SECTOR SHOULD BE INCLUDED UNDER CITY JURISDICTION IN THAT:

IT ENCOMPASSES TWO LOGICAL PLANNING UNITS FOR WHICH PLANNING ASSESSMENTS HAVE ALREADY BEEN PREPARED;

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THE WESTERN PLANNING UNIT IS REQUIRED TO ENSURE A LOGICAL AND ORDERLY COMPLETION OF THE RIVERBEND DEVELOPMENT; AND

THE AREA HAS EXCELLENT POTENTIAL FOR RESIDENTIAL DEVELOPMENT GIVEN THE AVAILABILITY OF UTILITY SERVICES AND THE PROXIMITY OF THE AREA TO PRIME RECREATIONAL LAND ADJACENT TO THE NORTH SASKATCHEWAN RIVER, THE WHITEMUD CREEK AND THE BLACKMUD CREEK. (Slides 104, 105, 106) SECTOR 14 IS DELINEATED BY HIGHWAY 60 ON THE WEST, THE SOUTHERN BOUNDARY OF THE STONY PLAIN INDIAN RESERVE ON THE NORTH AND THE NORTH SASKATCHEWAN RIVER ON THE EAST AND SOUTH. THE AREA ACCOMMODATES AGRICULTURAL USES AND HAS BEEN BADLY FRAGMENTED BY A CONSIDERABLE AMOUNT OF COUNTRY RESIDENCE DEVELOPMENT. IN THIS REGARD THE RECENTLY APPROVED COUNTY OF PARKLAND GENERAL PLAN RECOMMENDS THE FURTHER CONCENTRATION OF COUNTRY RESIDENCE DEVELOPMENT IN THIS AREA.

IN ADDITION TO THESE DEVELOPMENTS, THE SECTOR INCLUDES THE WESTRIDGE

PARK LODGE AND THE BOTANICAL GARDENS.

GIVEN THE UNDESIRABLE IMPACT OF PERIPHERIAL COUNTRY RESIDENCE DEVELOPMENT ON THE CITY, THE PRIME PURPOSE FOR INCLUDING THIS SECTOR IS TO GIVE THE CITY THE NECESSARY CONTROL TO RESTRICT THE FURTHER CONCENTRATION OF THIS TYPE OF USE IN THIS AREA. (Slides 107, 108, 109) SECTOR 15 IS BOUNDED BY THE CITY'S CORPORATE LIMITS ON THE EAST, THE STONY PLAIN INDIAN RESERVE ON THE WEST, AND SECTION LINES ON THE NORTH AND SOUTH. WHILE THE LAND IN THE AREA IS PRIMARILY UTILIZED FOR AGRICULTURAL PURPOSES, IT MUST BE NOTED THAT A PORTION OF THE SECTOR WAS THE SUBJECT OF A PRIVATELY INITIATED ANNEXATION APPLICATION IN 1975 FOR WHICH THE PROVINCIAL GOVERNMENT HAS NOT REACHED A DECISION.

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IT IS SUBMITTED THAT THE CITY'S BOUNDARY SHOULD BE EXPANDED IN THE WEST TO ENCOMPASS THIS SECTOR FOR A NUMBER OF REASONS. FIRSTLY, WEST JASPER PLACE IS DEVELOPING AT A RAPID PACE INDICATING A STRONG CONSUMER PREFERENCE FOR RESIDENTIAL ACCOMMODATION IN THE WESTERN PORTION OF THE CITY. ACCORDINGLY, THE CITY REQUIRES ADDITIONAL LAND IN THIS VICINITY TO ACCOMMODATE FUTURE RESIDENTIAL EXPANSION.

SECONDLY, THIS SECTOR CAN BE READILY SERVICED BY

EXISTING SEWER AND WATER FACILITIES AND THIRDLY, THE AREA REPRESENTS A LOGICAL PLANNING UNIT IN WHICH THE CITY REQUIRES CONTROL TO PROTECT THE AREA AND FACILITATE RATIONALE PLANNING. (Slides 110, 111, 112) SECTOR 16 IS BOUNDED BY CITY'S CORPORATE LIMITS ON THE EAST, THE STONY PLAIN INDIAN RESERVE ON THE SOUTH, HIGHWAY 60 ON THE WEST AND SECTION LINES TO THE NORTH. HIGHWAY 16 OR THE YELLOWHEAD ROUTE AND THE CANADIAN NATIONAL RAILWAY MAINLINE TRAVERSE THE SUBJECT LAND.

THE SECTOR ACCOMMODATES A MIXTURE OF

URBAN AND RURAL LAND USES INCLUDING AGRICULTURAL, INDUSTRIAL, COUNTRY RESIDENCE, A SMALL AIRFIELD, A GAS PLANT, HIGHWAY COMMERCIAL, AND THE WESTVIEW VILLAGE MOBILE HOME PARK. THIS AREA HAS EXPERIENCED CONSIDERABLE DEVELOPMENT PRESSURE IN RECENT YEARS AND HAS ACCORDINGLY BEEN THE SUBJECT OF A NUMBER OF PLANNING STUDIES UNDERTAKEN BY THE EDMONTON REGIONAL PLANNING COMMISSION AND THE COUNTY OF PARKLAND. THESE STUDIES HAVE, TO VARYING DEGREES, RECOMMENDED THE SIGNIFICANT CONCENTRATION OF INDUSTRIAL DEVELOPMENT IN THE AREA AT ACHESON, WINTERBURN AND THE LANDS SOUTH OF HIGHWAY 16 BETWEEN HIGHWAY 60 AND WINTERBURN ROAD. IN ADDITION, THESE PLANS HAVE IDENTIFIED VERY SERIOUS STORM DRAINAGE PROBLEMS CONFRONTING DEVELOPMENT IN THE AREA.

THE CITY HAS FOR THE MOST PART OBJECTED TO THESE PROPOSALS BECAUSE OF THEIR PREMATURITY, THE SEVERE DRAINAGE PROBLEMS AND THE UNDESIRABLE IMPLICATIONS OF

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THE PROPOSALS ON THE CITY'S WEST END TRANSPORTATION NETWORK.

AS AN

ALTERNATIVE, EDMONTON CITY COUNCIL HAS RECOMMENDED THAT LONG RANGE INDUSTRIAL DESIGNATIONS IN THE COUNTY OF PARKLAND BE IN AREAS REMOVED FROM THE PERIPHERY OF THE CITY, PREFERRABLY ADJACENT TO AND BETWEEN SUCH CENTRES AS SPRUCE GROVE AND STONY PLAIN.

THE INCLUSION OF THIS SECTOR WITHIN THE CITY IS CONSIDERED MOST DESIRABLE. THE PROPOSED EXPANSION WOULD PROVIDE THE CITY WITH NEEDED CONTROL TO PROTECT ITS PERIPHERY FROM PREMATURE AND UNDESIRABLE INDUSTRIAL DEVELOPMENT. THIS IS PARTICULARLY RELEVANT GIVEN THE EDMONTON RGIONAL PLANNING COMMISSION'S FAILURE TO EFFECTIVELY CONTROL DEVELOPMENT IN THIS AREA.

MOREOVER, EXPANSION IS NECESSARY TO PROVIDE ADDITIONAL LANDS TO ACCOMMODATE FUTURE LONG TERM URBAN INDUSTRIAL DEVELOPMENT IN THE WEST.

ADDITIONALLY, A WESTERN SHIFT OF THE BOUNDARIES IS REQUIRED TO ENSURE ORDERLY AND ECONOMICAL DEVELOPMENT GIVEN THE INTERDEPENDENCE OF DEVELOPMENT IN THE AREA WITH DEVELOPMENT INSIDE THE CURRENT CITY BOUNDARY. (Slides 113, 114, 115) FINALLY, THE RECOGNITION THAT THE FRINGE AREA NEEDS GOVERNMENTAL SERVICES THAT THE COUNTY IS NOT IN A POSITION TO PROVIDE AND THE EFFECT OF THAT NEED UPON THE CITY OF EDMONTON. THIS REQUIREMENT FOR MORE SOPHISTICATED URBAN SERVICES IS MOST APPARENT WITH RESPECT TO THE PROVISION OF UTILITY SERVICES, PARTICULARLY STORM DRAINAGE DISPOSAL.

SECTOR 17 ENCOMPASSES ALL BIG LAKE AND THE LANDS LOCATED ON ITS IMMEDIATE PERIPHERY. THE PERIPHERAL LANDS ARE USED FOR AGRICULTURAL PURPOSES AND SOME

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COUNTRY RESIDENCE DEVELOPMENT IS ALSO EVIDENT IN THE AREA. WITH RESPECT TO THIS LATTER ISSUE, THERE IS INCREASED PRESSURE FOR COUNTRY RESIDENTIAL DEVELOPMENT IN THE AREA BASED UPON SUBDIVISION ACTIVITY AND THE LAND USE DESIGNATIONS RECOMMENDED IN THE COUNTY OF PARKLAND GENERAL PLAN. AS WELL, THE SECTOR CONTAINS THE BIG LAKE BATTERY OWNED BY ESSO RESOURCES AND A GOLF AND COUNTRY CLUB.

BIG LAKE IN ITS ENTIRETY AND SURROUNDING LANDS SHOULD BE INCLUDED IN THE PROPOSED CITY BOUNDARY TO:

FACILITATE FLOOD CONTROL MANAGEMENT AND ELIMINATE POTENTIAL JURISDICTIONAL PROBLEMS ARISING FROM THE FLOODING THAT OCCURS AROUND THE LAKE EACH YEAR;

PROVIDE FOR A NATURAL DRAINAGE BASIN TO ACCOMMODATE FUTURE WATER STORAGE OR WATER IMPOUNDMENT SCHEMES TO PROTECT URBAN LANDS; AND

PROTECT THE LANDS ADJACENT TO THE LAKE FROM INCOMPATIBLE DEVELOPMENT AND URBAN ENCROACHMENT. (Slides 116, 117, 118, 119) SECTOR 18 BASICALLY INCLUDES ALL THOSE LANDS CURRENTLY UNDER THE JURISDICTION OF THE COUNTY OF STRATHCONA, EAST OF THE ALIGNMENT OF HIGHWAY 21. THIS AREA CONSISTS ALMOST ENTIRELY OF AGRICULTURAL LAND AND INCLUDES THE COOKING/ HASTINGS LAKE AREA AND A NUMBER OF SMALL, FARM OREINTED SERVICE COMMUNITIES. IN CONSIDERING THE INCLUSION OF THIS SECTOR, IT IS MAINTAINED THAT THERE IS A CERTAIN LIMIT BEYOND WHICH THE COUNTY CANNOT BE REDUCED UNLESS THE WHOLE COUNTY IS ANNEXED.

ACCORDINGLY, IT IS SUBMITTED THAT WITH THE INCLUSION OF

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REFINERY ROW AND SHERWOOD PARK, THE BALANCE OF THE COUNTY OF STRATHCONA AS DEFINED BY SECTOR 18 MUST ALSO BE INCLUDED AS IT IS INSUFFICIENT IN POPULATION AND SOURCES OF REVENUE TO ADEQUATELY SUPPORT AN INDEPENDENT COUNTY GOVERNMENT AND SCHOOL SYSTEM. (Slide 120)

THE EXCLUSION OF FORT SASKATCHEWAN

A BRIEF COMMENT ON THE EXCLUSION OF THE TOWN OF FORT SASKATCHEWAN IS, IN MY OPINION, NECESSARY AT THIS POINT.

FIRST OF ALL, IT IS IMPORTANT TO NOTE THAT THE CITY OF EDMONTON HAS CONSISTENTLY SUPPORTED THE TOWN OF FORT SASKATCHEWAN IN ITS VERY SUCCESSFUL EFFORTS TO DEVELOP A BALANCED INDUSTRIAL AND RESIDENTIAL BASE. FINANCIALLY, FUTURE PROSPECTS FOR THE TOWN APPEAR VERY GOOD AS A CONSEQUENCE OF THE SOUND AND DIVERSIFIED LOCAL TAX BASE.

GIVEN THE TOWN'S SUCCESS IN ATTRACTING AND SERVING THE NEEDS OF INDUSTRY, VERY GOOD EMPLOYMENT OPPORTUNITIES ARE AVAILABLE LOCALLY FOR RESIDENTS. ASSUMING THEN THAT THE TOWN COUNCIL AND ADMINISTRATION WILL CONTINUE TO IMPLEMENT PLANS FOR BALANCED DEVELOPMENT ARE AS SUCCESSFUL AS THEY HAVE BEEN HISTORICALLY THERE'S LITTLE REASON TO SUGGEST THAT FORT SASKATCHEWAN WILL BECOME AS DEPENDENT UPON THE CITY OF EDMONTON AS OTHER AREA COMMUNITIES CURRENTLY ARE. THERE IS IN EXISTENCE A RESTRICTED DEVELOPMENT AREA BETWEEN FORT SASKATCHEWAN AND THE CITY WHICH IN OUR OPINION WILL PROTECT FUTURE ENCROACHMENT OR IN-FILLING BETWEEN THE CITY AND THE BOUNDARIES OF FORT SASKTACHEWAN. IN OTHER WORDS, WE SHOULD BE ABLE, IF WE ALL ACT REASONABLY, TO MAINTAIN AN ADEQUATE

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BUFFER BETWEEN THE CITY AND FORT SASKATCHEWAN.

ALSO, BY THIS PROPOSAL WE

THINK WE WILL BE ABLE TO EFFECTIVELY CONTROL HIGHWAY DEVELOPMENT BETWEEN THE CITY AND FORT SASKTACHEWAN, AND THEREBY AVOID UNDESIREABLE CIRCUMSTANCES EXISTENT IN OTHER AREAS.

OBJECTIVES OF THE APPLICATION

I WOULD LIKE TO CONCLUDE BY EMPHASIZING THE OBJECTIVES OF THE COUNCIL OF THE CITY OF EDMONTON IN PRESENTATION OF THIS APPLICATION. COUNCIL IS SEEKING A MAJOR BOUNDARY ADJUSTMENT AND AN EXTENSION OF EDMONTON JURISDICTION UNDER A UNITARY FORM OF GOVERNMENT TO ACHIEVE THE FOLLOWING PURPOSES:

"(I) TO BRING UNDER THE JURISDICTION OF THE CITY OF EDMONTON SUFFICIENT LAND TO SATISFY LONG RANGE URBAN LAND DEVELOPMENT AND GROWTH REQUIREMENTS TO AT LEAST THE YEAR 2020;

(II) TO BRING UNDER THE JURISDICTION OF THE CITY OF EDMONTON OTHER LANDS WHICH OFFER A POTENTIAL FOR URBAN DEVELOPMENT, AND WHICH SHOULD THEREFORE BE BROUGHT UNDER THE CONTROL OF THE CITY TO ENSURE THAT SUCH LANDS ARE NOT DEVELOPED IN A MANNER POTENTIALLY PREJUDICIAL TO EFFECTIVE AND ECONOMIC FUTURE PLANNING, DEVELOPMENT AND JURISDICTION OF THE EDMONTON METROPOLITAN AREA;

(III) TO BRING TOGETHER, UNIFY, MERGE, OR INTEGRATE WITH THE CITY OF EDMONTON THOSE PERIPHERAL MUNICIPALITIES OR PARTS THEREOF WHICH DEMONSTRATE AN INTERDEPENDENCE WITH THE CITY FOR GROWTH,

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DEVELOPMENT AND THE PROVISION OF SOME OR ALL ESSENTIAL MUNICIPAL SERVICES;

(IV) TO RECOGNIZE AND TO ASSUME RESPONSIBILITY FOR THE SITUATION THAT WOULD BE CREATED BY THE ANNEXATION OF ONLY THOSE PARTS OF THE COUNTY OF STRATHCONA HAVING URBAN CHARACTERISTICS, REALIZING THAT THE REMAINDER OF THE COUNTY WOULD PROVIDE INSUFFICIENT POPULATION, AREA OR SOURCES OF REVENUE TO SUPPORT DELIVERY OF EFFECTIVE AND RESPONSIBLE GOVERNMENT AND SERVICES, INCLUDING SCHOOLS FOR REMAINING PORTIONS OF THE COUNTY; AND

(V) SUCH FURTHER AND OTHER MATTERS AS MAY BE ADVANCED TO THE LOCAL AUTHORITIES BOARD AT THE PUBLIC HEARING IN RESPECT OF THIS 30 PETITION. ,,

(Slide 121) CONCLUDING REMARKS

MR. CHAIRMAN AND MEMBERS OF THE BOARD, I HAVE ENDEAVOURED TO PROVIDE YOU WITH BACKGROUND TO THE EDMONTON ANNEXATION PROJECT ESSENTIAL TO A FULL APPRECIATION OF THE SCOPE OF THIS UNDERTAKING.

IN SUBSEQUENT PRESENTATIONS THE MAJOR

FINDINGS OF OUR STUDIES WILL BE PRESENTED BY A SERIES OF PROFESSIONALS FROM A HOST OF DISCIPLINES AND FIELDS.

THESE INDIVIDUALS WILL PROVIDE YOU A MUCH

MORE COMPLETE SUMMARY OF THE DETAILED CONCLUSIONS OF THE EDMONTON ANNEXATION RESEARCH INITIATIVES.

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(Slide 122) THE CITY'S PRESENTATIONS, AS INDICATED EARLIER BY BOTH HIS WORSHIP, MAYOR C.J. PURVES, AND THE CHIEF COMMISSIONER OF EDMONTON, MR. D.F. BURROWS, DO NOT ADDRESS A "SIMPLE" ANNEXATION, BUT RATHER EMBODY A DESIRE BY THE CITY OF EDMONTON TO EXPAND POLITICAL JURISDICTION OVER THOSE LANDS REQUIRED FOR DEVELOPMENT, LONG RANGE PLANNING AND CONTROL, AND EFFICIENCY OF FUTURE SERVICE DELIVERY.

I AM PERSONALLY SATISFIED THAT THE CITY'S SUBMISSION REPRESENTS A CONSTRUCTIVE AN RESPONSIBLE PROPOSAL FOR THE FUTURE GOVERNMENT AND GROWTH MANAGEMENT OF THE EDMONTON METROPOLITAN AREA. THE CITY'S PROPOSAL INCLUDES, FIRST OF ALL, AN OUTLINE OF THE BASIS FOR EFFECTIVE REPRESENTATION OF EACH OF THE COMMUNITIES INCLUDED WITHIN THE PROPOSAL ON AN EXPANDED EDMONTON CITY COUNCIL. (Slide 123) SECONDLY, THE CITY'S POSITION PROVIDES AN INSTITUTIONAL MEANS OF IMPLEMENTING A FORM OF LOCAL GOVERNMENT DECENTRALIZATION, ALREADYONGOING WITHIN THE CITY OF EDMONTON'S OPERATIONS AND ADMINISTRATION--A PROCESS AND PROGRAM WHICH WILL HELP TO ENSURE THAT THE AFFECTED COMMUNITIES AND NEIGHBOURHOODS CONTINUE TO BE CONSULTED AND INVOLVED IN THE PROCESS OF LOCAL GOVERNMENT.

FINALLY, AND PERHAPS MOST IMPORTANTLY, THE PROPOSAL PRESENTS AN EQUITABLE ARRANGEMENT WITH RESPECT TO TAXATION ON RURAL AREAS, WHICH WILL BE INCORPORATED WITHIN THE NEW CITY BOUNDARIES, BUT ARE NOT LIKELY TO BE URBANIZED FOR MANY, MANY YEARS INTO THE FUTURE. (Slide 124) THE CITY HAS, OF COURSE, ALSO GIVEN ATTENTION TO A NUMBER OF OTHER INSTITUTIONAL ARRANGEMENTS WHICH ARE ESSENTIAL TO A CONSIDERATION OF BOUNDARY

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ADJUSTMENT AND LOCAL GOVERNMENT REORGANIZATION.

IN OUR REVIEW OF THE

POTENTIAL EFFECTS ON OTHER INSTITUTIONAL ARRANGEMENTS, WE EXAMINED THE POSSIBILITIES OF TWO-TIER GOVERNMENT ARRANGEMENTS, AS SUGGESTED BY THE ALBERTA LAND USE FORUM. CONSULTANTS TO THE PROJECT ADVISE THAT SUCH ARRANGEMENTS WILL INEVITABLY ARISE IN THIS AREA IF A MAJOR BOUNDARY ADJUSTMENT FOR THE CITY IS NOT APPROVED. WE ALSO CONCLUDED, AND THE CONSULTANTS WILL ADDRESS THIS IN DETAIL, THAT NO SUCH TWO-TIER OR SECOND LEVEL OF LOCAL GOVERNMENT IS APPROPRIATE IN THE EDMONTON CIRCUMSTANCE.

IN THIS REGARD THE CREATION OF

AREA-WIDE SPECIAL PURPOSE BODIES, SUCH AS NOW PROPOSED UNDER THE EDMONTON REGIONAL UTILITY STUDY, WILL ONLY CONTRIBUTE TO FURTHER JURISDICTIONAL FRAGMENTATION AND THE COMPOUNDING OF LOCAL AREA INTERJURISDICTIONAL PROBLEMS WE SEEK TO AVOID. ON THIS BASIS A SINGLE UNITARY SYSTEM OF LOCAL GOVERNMENT SEEMS MOST PRACTICAL, AND INDEED, PREFERABLE FOR THE EDMONTON METROPOLITAN AREA. (Slide 125) I WOULD SUBMIT MR. CHAIRMAN, THAT OUR ATTENTION IN THESE HEARINGS SHOULD BE DIRECTED TO A CONSIDERATION OF WHAT THE FUTURE HOLDS IN THE ABSENCE OF ANY MAJOR INITIATIVE TO REORGANIZE LOCAL GOVERNMENT IN THE EDMONTON AREA, AND TO EXTEND THE INFLUENCE OF THE CENTRAL CITY--REPRESENTING 73% OF THE AREAS POPULATION AND PROVIDING SUBSTANTIAL SUPPORT TO A MUCH LARGE REGION THROUGH UTILITY AND SERVICING COMMITMENTS--IS NOT ADVANCED.

WE ARE, AS I AM SURE OUR FURTHER PRESENTATIONS WILL DEMONSTRATE, IN A VERY SERIOUS CIRCUMSTANCE IN THE EDMONTON METROPOLITAN AREA. EXISTING SYSTEMS OF LOCAL GOVERNMENT, DEVELOPMENT CONTROL, AND LAND USE PLANNING ARE INCREASINGLY LIMITED BY THE UNNECESSARY AND INEFFICIENT JURISDICTIONAL FRAGMENTATION. AS AN ILLUSTRATION, EDMONTON CITY COUNCIL HAS EXPRESSED CONCERNS THAT THE CURRENT

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PLANNING ARRANGEMENTS OF THE EDMONTON REGIONAL PLANNING COMMISSION DO NOT ACCORD THE CENTRAL CITY A REASONABLE INFLUENCE OVER DEVELOPMENT AND GROWTH OF AREAS DEPENDENT UPON CITY SERVICES IN THE EDMONTON METROPOLITAN AREA. FURTHER, COUNCIL EXPRESSES THE VIEW THAT THIS INABILITY TO EFFECTIVELY INFLUENCE PLANNING AND MANAGEMENT OF GROWTH IN THE AREA IS UNNECESSARY AND COSTLY FOR ALL RESIDENTS WHERE FIVE MUNICIPAL JURISDICTIONS ARE PERFORMING FUNCTIONS WHICH CAN BE MORE EFFECIENTLY AND ECONOMICALLY UNDERTAKEN BY ONE.

SUCH DIFFICULTIES ARE EXPECTED TO INTENSIFY IN THE FUTURE, OWING TO ANTICIPATED HIGH RATES OF GROWTH IN PERIPHERAL AREAS, WHICH WILL INCREASE THE DEMAND FOR AND DEPENDENCE ON CENTRAL CITY SERVICES. IT'S EXPECTED THAT THE GROWTH AND DEMAND FOR THESE SERVICES IS GOING TO BE GREATER IN THE AREAS BEYOND THE CITY'S JURISDICTION THAN IN AREAS WITHIN THE CITY'S DIRECT CONTROL AT THE PRESENT TIME.

WE ALSO EXPECT THAT IN THE FUTURE PERIPHERAL INDUSTRY DEPENDENT UPON CITY EMPLOYMENT OR CITY WORK FORCE--IN OTHER WORDS, PEOPLE THAT ARE RESIDENT IN THE CITY BUT OBTAIN EMPLOYMENT OUTSIDE ITS BOUNDARIES--WILL INCREASE, WHICH WILL IN TURN LEAD TO INCREASES IN FUTURE CITY SERVICING COSTS, DIRECT INDUSTRIAL REVENUES TO OTHER JURISDICTIONS. IN OTHER WORDS, THE CITY WILL CONTINUE TO PROVIDE THE EMPLOYMENT BASE BUT ITS ABILITY TO SHARE IN THE BENEFITS OF THAT INDUSTRIAL DEVELOPMENT THROUGH TAXATION WILL BE FURTHER LIMITED.

IN OTHER WORDS, IT IS EDMONTON'S VIEW THAT IN THE ABSENCE OF MAJOR BOUNDARY ADJUSTMENTS FISCAL INEQUITY AND IMBALANCE IN THE REGION WILL CONTINUE AS A RESULT OF COMPETITION FOR INDUSTRY BETWEEN THE PERIPHERAL MUNICIPALITIES AND EDMONTON.

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IT MUST ALSO BE OBSERVED THAT GROWTH AND DEVELOPMENT PRESSURE WILL REQUIRE--IN THE ABSENCE OF THE BOUNDARY ADJUSTMENT PROPOSED BY THIS CITY--A CONTINUED PIECEMEAL APPROACH TO ANNEXATION, WHICH AS WE HAVE INDICATED EARLIER IS QUITE UNACCEPTABLE AND DOESN'T CONTRIBUTE TO AN IMPROVED OR REASONABLE ABILITY TO FINANCE MUNICIPAL SERVICES OR TO PLAN FOR THE CONSTRUCTION OF FACILITIES ECONOMICALLY. (Slide 126) THE RESULTS OF OUR STUDIES HAVE DEMONSTRATED THAT THERE IS A HIGH LEVEL OF INTER-DEPENDENCE AMONGST THE MUNICIPALITIES IN THIS AREA. IN PARTICULAR, WE HAVE DETERMINED THAT GROWTH IN THE AREA IS DEPENDENT UPON THE CITY OF EDMONTON, MORE PARTICULARLY, ON SERVICES PROVIDED BY THIS MUNICIPALITY TO ADJACENT JURISDICTIONS.

EDMONTON PROVIDES THE PRINCIPAL OCCUPATIONAL AND

ECONOMIC OPPORTUNITIES OF THE REGION WITH AN AVERAGE 70 PERCENT INNER METROPOLITAN AREA RESIDENTS EMPLOYED WITHIN THE CITY BOUNDARIES AND COMMUTING TO EDMONTON ON A DAILY BASIS.

OUR STUDIES HAVE DEMONSTRATED AN INTERDEPENDENCE ON GROWTH, THAT IS, GROWTH IN THE PERIPHERAL MUNICIPALITIES IS FACILITATED BY THE WILLINGNESS EDMONTON HAS CHARACTERISTICALLY DISPLAYED IN EXTENDING ITS BASIC SERVICES AND UTILITIES.

OUR CONSULTANTS WILL DEMONSTRATE THAT THE RESIDENTS OF THE PERIPHERAL MUNICIPALITIES DO ENJOY, TO A CONSIDERABLE EXTENT, SERVICES PROVIDED EXCLUSIVELY AND AVAILABLE ONLY FROM THE CITY OF EDMONTON. (Slide 127) MUCH OF OUR EFFORT HAS BEEN DIRECTED TO AN EXAMINATION OF FUTURE PLANNING AND GROWTH MANAGEMENT REQUIREMENTS, IF THIS AREA IS TO DEVELOP IN AN EFFICIENT ORDERLY AND RATIONALE MANNER.

AS A RESULT OF THESE INVESTIGATIONS WE ARE

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CONVINCED THAT CURRENT INSTITUTIONAL FRAGMENTATION IN THE EDMONTON AREA UNNECESSARILY COMPLICATES PLANNING AND GROWTH MANAGEMENT ACTIVITIES. IN OTHER WORDS, THE CURRENT ARRANGMENT WHERE FIVE MUNICIPAL JURISDICTIONS IN ADDITION TO THE EDMONTON REGIONAL PLANNING COMMISSION ALL PERFORMING PLANNING AND DEVELOPMENT CONTROL FUNCTIONS HAS CREATED A SITUATION OF CONFUSION, COMPLICATION, DELAY AND REDUNDANCY OF EFFORT.

OUR RESEARCH DEMONSTRATES THE GENERAL INEFFECTIVENESS OF THE EDMONTON REGIONAL PLANNING COMISSION.

THE COMMISSION IS, BY VIRTUE OF ITS STRUCTURE, A

POLITICAL COMPROMISE. IT IS NOT IN A POSITION TO EXERT STRONG PLANNING AND DEVELOPMENT CONTROL OVER ALL AREAS IN THE EDMONTON REGION. OUR CONSULTANTS ALSO ADVISE THAT GROWTH MANAGEMENT WILL REQUIRE US TO FORMULATE LAND USE AND OTHER PLANS, AND THE POWER TO IMPLEMENT THESE PLANS THAT IS AVAILABLE MAINLY THROUGH THE PROVISION OF UTILITIES AND SERVICES FROM THE CENTRAL CITY.

FINALLY, EFFECTIVE LAND USE CONTROL MUST IN OUR OPINION, PROCEED IN ASSOCIATION WITH EFFORTS TO IMPROVE THE ECONOMIC SUPPLY OF WATER TO ALL MUNICIPALITIES, FACILITATE THE DEVELOPMENT OF INTEGRATED SANITARY AND SEWERAGE TREATMENT SYSTEMS, AND TRANSPORTATION FACILITIES, ALL OF WHICH IS ENHANCED WHEN THE COMBINED RESOURCES OF EXISTING MUNICIPALITIES ARE PLACED IN COMMON "POOL", FACILITATING AND IMPROVED ABILITY TO ASSIGN PRIORITIES AND COMMITMENTS ON A REGIONAL LEVEL. THIS COMMON AND UNIFIED APPROACH WILL IN OUR ESTIMATION, ENHANCE OUR ABILITY TO PROVIDE THE FULL RANGE OF SOCIAL AND COMMUNITY SERVICES REQUIRED IN AREAS ON THE CITY'S PERIMETER AND WITHIN THE CITY PROPER. FINALLY, IT WOULD FACILITATE THE EVOLUTION OF AN ADEQUATE ARRANGEMENT FOR GOVERNMENT OF THE AREA.

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MR. CHAIRMAN, I BELIEVE THAT HIS WORSHIP, MAYOR C. J. PURVES, IN COMMENTS TO EDMONTON CITY COUNCIL ON MARCH 20, 1979, VERY CRISPLY SUMMARIZED THE CITY'S CONCERNS AND CONFIDENCE IN THE RATIONALE OF THIS APPLICATION.

MAYOR PURVES COMMENTED:

"WHAT WE ARE REALLY TALKING ABOUT IS THE FUTURE OF THE CITY OF EDMONTON: NOT TOMORROW.... NOT IN THE SHORT TERM, BUT IN THE LONG TERM.... IT IS THE LONG TERM DECISIONS THAT ARE....MOST DIFFICULT BECAUSE THEN YOU START DEALING WITH TOO MANY UNKNOWNS, BUT SOMEBODY, SOMETIME, SOMEWHERE, SOMEHOW, HAS TO IN FACT FACE THE PROBLEM AND DECISIONS HAVE TO BE MADE....THE MEN AND WOMEN OF THIS COUNCIL HAVE THE VISION AND THE FORESIGHT AND ARE PREPARED TO MAKE THE KIND OF NECESSARY DECISIONS TODAY.... TO HAVE THE CONFIDENCE IN OURSELVES AND IN THIS CITY THAT WE ARE GOING IN THE RIGHT DIRECTION....I FULLY 31 BELIEVE WE ARE. ,,

THE HONOURABLE MINISTER OF MUNICIPAL AFFAIRS ALSO SEEMS TO HAVE CAPTURED THE ESSENCE AND IMPORTANCE OF THE HEARINGS ARE ENTERING. I WAS PLEASED TO NOTE IN THE ALBERTA HANSARD FOR JUNE 6, 1979 COMMENTS BY MR. MOORE WHEREIN HE INDICATED THAT:

"...WE'LL BE UNDERTAKING TO CONSIDER A NUMBER OF OTHER THINGS WITH RESPECT TO THE STYLE AND TYPE OF METROPOLITAN GOVERNMENT THAT MIGHT EXIST IN EDMONTON AND REGION....I EXPECT.... TO GET A BETTER UNDERSTANDING OF THE VARIOUS CHALLENGES BEFORE US IN

70.

DETERMINING WHAT I THINK WILL BE A TIMEFRAME OF 25 TO 30 YEARS AT LEAST, IN TERMS OF THE KIND AND STYLE OF LOCAL MUNICIPAL GOVERNMENT IN EDMONTON AND REGION, INDEED THE SIZE AND EXISTENCE OF MUNICIPAL JURISDICTIONS WHICH NOW MAKE UP 32 THE REGION WE'RE REFERRING TO. ,,

MR. CHAIRMAN, MEMBERS OF THE BOARD, I THANK YOU FOR YOUR CONSIDERATION AND ATTENTION THROUGHOUT THIS PRESENTATION. YOU CAN, OF COURSE, BE ASSURRED OF THE COOPERATION AND ASSISTANCE OF THE CITY OF EDMONTON IN YOUR DELIBERATIONS ON THIS PROPOSAL, WHICH IN THE WORDS OF THE MINISTER OF MUNICIPAL AFFAIRS SHAPE:

"...THE FUTURE FORM OF LOCAL MUNICIPAL GOVERNMENT IN EDMONTON 33 AND REGION FOR MANY, MANY YEARS TO CONE."

THANK YOU.

71.

FOOTNOTES

Report of the Royal Commission on the Metropolitan Development of Calgary Queen's G. Fred McNally, Chairman. Edmonton, Alberta: and Edmonton. Printer, 1956.

The Potential Unification of the Edmonton Metropolitan Area A Fiscal Edmonton, Erick J. Hanson. Study of Annexation and Amalgamation. Alberta: University of Alberta, 1968.

A Statement on the Future of This City. Edmonton, Alberta, City of Edmonton, 1973.

City of Edmonton Proposed Annexation of Land Between the Existing City Boundary and the Restricted Development Area. Edmonton City Council. Edmonton, Alberta, City of Edmonton, 1977.

Alberta Hansard, March 21, 1978, p. 320.

Since 1947 there have been 20 separate boundary adjustments effected for the City of Edmonton.

City Council authorized the Civic Administration on June 13, 1979, to prepare an annexation application for submission to the Local Authorities Board.

Report of the Royal Commission on the Metropolitan Development of Calgary and Edmonton. G. Fred McNally, Chairman. Edmonton, Alberta: Queen's Printer, 1956.

Land Use Forum Report and Recommendations. Edmonton, Alberta: Queen's Printer, 1976.

Edmonton City Council.

Dr. V.A. Wood, Chairman.

10. Land Use Forum, op. cit, p. 69. 11. Loc. cit. 12. Op. cit., p. 201. 13. McNally, op. cit. 14. Hansen, op. cit. 15. Board Decision, and Board Order No. 1234, L.A.B., March 31, 1964 (Town of Jasper Place). 16. Ibid. 17. Ibid. 18. Ibid.

72.

Footnotes... continued 19. Board Order No. 10272, L.A.B. February 20, 1978. (City of Calgary) 20. The Crowsnest Pass Unification Proposal and Considerations, Proposal", Department of Municipal Affairs, Province of Alberta.

"Final

21. Ibid. 22. Ibid. 23. The Basis of An Application to the Local Authorities Board of the Province of Alberta, City of Edmonton, March 21, 1979 (As amended April 25, 1979). 24. McNally, op. cit., p. 5. 25. Ibid. 26. Op. cit., p. 34. 27. Op. cit., p. 24. 28. Op. cit., p. 25. 29. Op. cit., p. 28. 30. The Basis of An Application to the Local Authorities Board (City of Edmonton), op. cit. 31. Mayor C.J. Purves, Edmonton City Council Meeting, March 20, 1979. 32. Alberta Hansard, June 4, 1979, pp. 174-175. 34. Ibid.

73.

BIBLIOGRAPHY

THE FOLLOWING REPRESENTS A SELECTED LIST OF THE MAJOR REFERENCES UTILIZED BY THE EDMONTON ADMINISTRATION IN PREPARING PRSENTATIONS FOR THE LOCAL AUTHORITIES BOARD IN CONNECTION WITH THE CITY OF EDMONTON'S ANNEXATION APPLICATION.

COPIES OF THESE DOCUMENTS CAN BE OBTAINED FROM THE SOURCE INDICATED.

REFERENCE

SOURCE

1. Report of the Royal Commission on the Metropolitan Development of Calgary and Edmonton. G. S. Fred McNally, Chairman, 1956.

Queen's Printer, Province of Alberta

2. Local Authorities Board Order No. 1234, dated March 31, 1964 regarding applications for annexation of the Town of Jasper Place, a portion of the County of Strathcona and a portion of the Municipal District of Sturgeon.

Alberta Local Authorities Board

3. The Potential Unification of the Edmonton Metropolitan Area a Fiscal Study of Annexation and Amalgamation. E.J. Hanson, 1968.

Centennial Branch, Edmonton Public Library (EPL)

4. A Statement on the Future of the City. Edmonton City Council, 1973.

Centennial Branch, (EPL)

Edmonton Regional Planning Commission

Annexation Guidelines for Urban Areas. Adopted by the Edmonton Regional Planning Commission on April 3, 1974.

6. Land Use Forum Report and Recommendations. Dr. V.A. Wood, Chairman, 1976.

Province of Alberta

74.

REFERENCE

SOURCE

7. Criteria and Procedures to be Used in Evaluating Proposals for the Annexaion of Land to the City of Calgary, Adopted by Calgary Council, May 26, 1975, April, 1975.

City of Calgary

8. Letter from the Mayor of Edmonton to the Premier of Alberta, dated 1977, regarding Edmonton proposal to annex lands to the Restricted Development Area.

City of Edmonton, City Clerk

9. The Crowsnest Pass Amalgamation Study. Alberta Municipal Affairs, 1977.

Province Department Affairs

of of

Alberta, Municipal

10. The Hamlet of Sherwood Park A Review of Alternate Forms of Government. Alberta Municipal Affairs, 1977.

Province Department Affairs

of of

Alberta, Municipal

11. City of Calgary Annexation Petition for the Annexation of 48 Square Miles of Land, 1978.

City of Calgary

12. Local Authorities Board Order No. 10272, dated February 20, 1978 (as varied by Order in Council numbered 0.0. 15/79) regarding City of Calgary Annexation Application.

Alberta Local Authorities Board

13. Edmonton City Council's June 13, 1979 authorization for Civic Administration to prepare an annexation application to the Local Authorities Board.

City of Edmonton, City Clerk

14. Edmonton City Council's September 11, 1979 approval of interim policy commitments regarding Edmonton Annexation Application.

City of Edmonton, City Clerk

15. Comments of Minister of Municipal Affairs regarding City of Edmonton's attempts for boundary adjustment, May, 1978.

Province of Alberta, Alberta Hansard

A STATEMENT TO THE ALBERTA LOCAL AUTHORITIES BOARD ON THE TRANSITIONAL IMPLICATIONS OF THE EDMONTON ANNEXATION APPLICATION

Presented by: David R. Podmore Director Edmonton Annexation Application

September 1979

THE PURPOSE OF MY PRESENTATION IS TO DISCUSS THOSE TRANSITIONAL POLICIES AND ADJUSTMENTS IN ITS OPERATIONS THAT THE CITY OF EDMONTON ENVISIONS ARE REQUIRED TO PROPERLY ADMINISTER AND TO DELIVER SERVICES TO THE EXPANDED BOUNDARY AREA. THE CITY IS COGNIZANT OF THE ESSENTIAL REQUIREMENT TO EFFECT A SMOOTH AND EFFICIENT CHANGE IN JURISDICTION.

PERHAPS, MOST IMPORTANTLY, THE CITY IS

CONCERNED THAT EVERY ADVANCE EFFORT BE MADE TO GUARANTEE THAT THE EXISTING LEVELS OF SERVICE AND ACCESS TO LOCAL GOVERNMENT ARE MAINTAINED AND WHERE PRACTICAL IMPROVED FOLLOWING ANNEXATION.

WITH THIS IN MIND I WOULD LIKE TO APPRISE YOU OF THE EXTENT AND THE LEVEL OF DETAIL THAT THE CITY HAS INVESTIGATED IN TRYING TO SATISFY ITS OWN CONCERNS, THAT IT IS CAPABILE OF MANAGING AND OPERATING IN THE EXPANDED AREA EFFECTIVELY, AND BASICALLY IN ENSURING THAT THE CITIZENS OF THE AREA ARE GUARANTEED AT LEAST AN EQUIVALENT LEVEL OF SERVICE CURRENTLY RECEIVED FROM THE EXISTING SEPARATE JURISDICATIONS.

THE CITY OF EDMONTON HAS UNDERTAKEN A VERY THOROUGH ANALYSIS OF EACH OF THE DEPARTMENTS OF ITS ADMINISTRATION. THIS ANALYSIS HAS INVOLVED THE COMMISSION BOARD VERY ACTIVELY, AND ALL OF THE GENERAL MANAGERS AND SENIOR MANAGEMENT OF THE CITY'S ADMINISTRATION.

GIVEN THE VERY UNIQUE ROLE AND RELATIONSHIP

BETWEEN THE CITY OF EDMONTON AND THE SCHOOL SYSTEM, IT HAS NECESSARILY ALSO INVOLVED THE SUPERINTENDENTS OF THE EDMONTON PUBLIC SCHOOL BOARD AND THE EDMONTON CATHOLIC SCHOOL SYSTEM. TO THE EXTENT POSSIBLE, IT HAS ALSO INVOLVED SOME OF SENIOR ADMINISTRATORS IN OTHER DEPARTMENTS OF THE VARIOUS LEVELS OF GOVERNMENT, AS FOR EXAMPLE, ALBERTA TRANSPORTATION, ALBERTA ENVIRONMENT, THE ALBERTA SOLICITOR GENERAL'S OFFICE, CANADIAN FORCES BASE EDMONTON, AND THE ROYAL CANADIAN MOUNTED POLICE.

YOU WILL ALSO NOTE IN THE MATERIAL FILED WITH YOU AN EMPHASIS ON PROTECTIVE SERVICES.

WE ARE MOST CONCERNED THAT TWO ESSENTIAL SERVICES--FIRE AND

POLICE--BE PROPERLY AND EFFECTIVELY DELIVERED IMMEDIATELY ON BOUNDARY ADJUSTMENT. THE CAPABILITY TO POLICE THE EXPANDED AREA AND TO PROVIDE FIRE PROTECTION AND PREVENTION SERVICES AT EXISTING OR IMPROVED LEVELS MUST, IN OUR ESTIMATION BE ASSURRED IN ADVANCE OF ANY CHANGE OF JURISDICTION. AS A CONSEQUENCE THESE TWO AREAS HAVE BEEN EXAMINED IN CONSIDERABLE DETAIL.

AS AN

EXAMPLE, WE HAVE GONE TO THE EXTENT OF DEVELOPING BOTH DETAILED CAPITAL AND OPERATING BUDGET PROGRAMS FOR THE IMMEDIATE TRANSITION OF THESE SERVICES INTO THE CITY'S OPERATION. THE COSTS OF THESE EXPANDED PROGRAMS HAVE, OF COURSE, BEEN INCLUDED IN THE FINANCIAL ANALYSIS PRESENTED TO YOU EARLIER. THE CITY'S ANALYSIS IN MANY OF THE MUNICIPAL SERVICE AREAS HAS NECESSARILY CONCENTRATED ON THE POLICY AND GENERAL PROGRAM IMPACTS OF THE PROPOSED BOUNDARY ADJUSTMENT.

AS A FINAL POINT BY WAY OF INTRODUCTION, I WOULD LIKE TO EMPHASIZE THAT WE HAVE CONSIDERED THE INTEGRATION OF ALL STAFF FROM EXISTING JURISDICTIONS THAT WOULD BE AMALGAMATED OR UNIFIED WITH THE CITY'S OPERATION IF AND WHEN THE EDMONTON PROPOSAL IS IMPLEMENTED. IN THIS REGARD, PROVISION HAS BEEN MADE BY EDMONTON CITY COUNCIL TO ENSURE THAT ALL STAFF EMPLOYED BY THE EXISTING JURISDICTIONS PROPOSED FOR UNIFICATION WILL BE GIVEN AN OPPORTUNITY TO BE EMPLOYED BY THE CITY OF EDMONTON AT AN EQUIVALENT LEVEL OF REMUNERATION.

I WOULD NOW LIKE TO REFER YOU TO THE EXHIBIT (APPENDIX A) WHICH IS AN EXTRACT OF EDMONTON CITY COUNCIL RECORDS OF SEPTEMBER 11, 1979. AT ITS MEETING ON THIS DATE COUNCIL CONSIDERED A NUMBER OF POLICY DIRECTIONS WHICH ARE CONSIDERED ESSENTIAL TO PRESENTATION OF EDMONTON'S PROPOSAL TO THIS maim THESE POLICY DIRECTIONS, WHICH I WILL DISCUSS IN DETAIL SHORTLY, WERE

CONFIRMED BY EDMONTON CITY COUNCIL'S WILLINGNESS TO PROCEED ON THIS BASIS IF THE BOUNDARY ADJUSTMENT AS PROPOSED IS IMPLEMENTED.

FOR CONVENIENCE THE REPORT IS DIVIDED INTO A NUMBER OF SECTIONS. THE FIRST SECTION DEALS WITH ADMINISTRATIVE AND POLITICAL REPRESENTATION, AND THOSE CHANGES THAT WOULD BE NEEDED IN CONJUNCTION WITH THE BOUNDARY ADJUSTMENT.

THE FIRST POLICY THAT COUNCIL HAS ADOPTED CONFIRMS THAT CAREFUL CONSIDERATION WILL BE GIVEN TO THE USE OF PRESENT MUNICIPAL BUILDINGS AND FACILITIES IN THE AREAS PROPOSED FOR ANNEXATION. THE CITY OF EDMONTON ALREADY HAS IN EFFECT A PROGRAM INTENDED TO INCREASE THE DECENTRALIZED DELIVERY OF KEY MUNICIPAL SERVICES, IN PARTICULAR, POLICE, FIRE, LIBRARY, HEALTH CARE, AND SOCIAL SERVICES.

IT IS THE CITY'S VIEW THAT THIS EXISTING PROGRAM CAN BE READILY

EXPANDED TO INCLUDE DELIVERY FROM OTHER DECENTRALIZED LOCATIONS IN THE HAMLET OF SHERWOOD PARK, THE CITY OF ST. ALBERT, AND AT SOME FUTURE DATE EXTENSIVE RURAL PORTIONS OF THE EXPANDED CITY.

THE DECENTRALIZED DELIVERY OF THESE

ESSENTIAL SERVICES, THEREFORE, APPEARS TO POSE NO SERIOUS DIFFICULTY FOR THE CITY OF EDMONTON AND CAN BE IMMEDIATELY ACCOMMODATED WITHIN ITS EXISTING MANAGEMENT AND OPERATIONS STRUCTURE.

SECONDLY, CITY COUNCIL HAS INDICATED ITS COMMITMENT TO PURSUE AN ADJUSTMENT OF THE SYSTEM OF REPRESENTATION ON THE EDMONTON REGIONAL PLANNING COMMISSION OF THE EXPANDED CITY TO PROVIDE MAJORITY REPRESENTATION FOR THE CITY OF EDMONTON--POSSIBLY ON THE BASIS OF REPRESENTATION BY POPULATION.

IN OTHER

WORDS, COUNCIL WILL BE SEEKING A MAJOR EXPANSION OF ITS REPRESENTATION OF THE REGIONAL PLANNING COMMISSION AND THEREFORE, AN IMPROVEMENT IN ITS ABILITY TO INPUT TO THE FUTURE DIRECTION OF LAND PLANNING AND DEVELOPMENT OF THE EDMONTON REGION.

A SECOND ITEM RELATED TO THE REGIONAL PLANNING COMMISSION IS THAT CITY COUNCIL HAD INDICATED THAT IT WILL PROCEED WITH A PROPOSAL TO THE PROVINCIAL GOVERNMENT UPON BOUNDARY ADJUSTMENT TO SIGNIFICANTLY EXTEND THE POWERS OF THE EXPANDED CITY OF EDMONTON ON THE REGIONAL PLANNING COMMISSION TO ACCORD ITS REPRESENTATIVES VETO AUTHORITY ON SUBDIVISION AND ZONING IN AN AREA UP TO APPROXIMATELY FIVE MILES FROM THE EXPANDED CITY LIMITS. THE PURPOSE OF THIS IS TO PROVIDE THE CITY WITH THE ESSENTIAL ABILITY TO CONTROL OR LIMIT ANY CONTINUATION OF CURRENT DEVELOPMENT PRACTICES ON THE CITY'S PERIPHERY WHICH RESULT IN PIECEMEAL, VERY LOW DENSITY, AND INEFFICIENT LAND DEVELOPMENT PATTERN IN AREAS OF POTENTIAL FUTURE CITY EXPANSION. A PATTERN WHICH INCIDENTLY, HAS RESULTED IN A SERIOUS EROSION OF THE AGRICULTURAL BASE OF THIS COMMUNITY AND REGION.

SUCH MEASURES ARE CLEARLY ESSENTIAL TO ENSURE THAT THESE AND

OTHER CIRCUMSTANCES WHICH HAVE PROMPTED THIS APPLICATION, DO NOT ARISE IN THE SEEABLE FUTURE.

THE CITY REQUIRES SOME ASSURANCE THAT DEVELOPMENT ON ITS

PERIPHERY WILL NOT CONTINUE TO OCCUR TO AN EXTENT THAT LIMITS THE CITY'S ABILITY FOR FUTURE BOUNDARY ADJUSTMENT TO MEET RESIDENTIAL AND INDUSTRIAL LAND REQUIREMENTS, OR TO ECONOMICALLY EXTEND AND DELIVER ESSENTIAL MUNICIPAL SERVICES.

EDMONTON IS COMMITTED TO PROVIDING ADEQUATE REPRESENTATION ON THE FUTURE COUNCIL TO THE COMMUNITIES OF ST. ALBERT, SHERWOOD PARK, AND THE RURAL RESIDENTS OF THE COUNTY OF STRATHCONA. IN THIS REGARD, EDMONTON CITY COUNCIL HAS PROPOSED THAT IN THE FIRST YEAR OF BOUNDARY ADJUSTMENT THE NEW COUNCIL WOULD BE EXPANDED TO INCLUDE ONE REPRESENTATIVE FROM EACH OF THE ANNEXED AREAS. THESE ADDITIONAL REPRESENTATIVES WOULD THEN PARTICIPATE IN DETERMINING THE ULTIMATE FORM OF THE FUTURE COUNCIL OF THE CITY OF EDMONTON WITHIN ONE YEAR OF UNIFICATION.

THIS IS REGARDED AS ESSENTIAL TO ENSURE THAT THOSE

CITIZENS THAT ARE AFFECTED BY THE UNIFICATION HAVE AN ADEQUATE VOICE IN RESTRUCTURING THE COUNCIL OF THE FUTURE CITY.

THE FOURTH MATTER RELATING TO ADMINISTRATION AND POLITICAL REPRESENTATION IS THAT THE CITY OF EDMONTON IS COMMITTED--POSSIBLY IN CONJUNCTION WITH STUDIES CURRENTLY UNDERWAY BY THE EDMONTON ADVISORY COMMITTEE ON LOCAL GOVERNMENT--TO AN IMMEDIATE DETAILED INVESTIGATION INTO FUTURE COUNCIL, STRUCTURE WARD AND ELECTION PROCEDURE CHANGES FOR THE NEW CITY, AND THAT THESE INVESTIGATIONS BE COMPLETED WITHIN THE FIRST YEAR OF BOUNDARY ADJUSTMENT.

THE NEXT GROUP OF POLICY STATEMENTS IDENTIFIED IN THE EXHIBIT RELATES TO THE POTENTIAL EFFECT ON THE CITY'S FINANCIAL OPERATIONS OF THE BOUNDARY EXPANSION AND LOCAL GOVERNMENT UNIFICATION. COUNCIL HAS COMMITTED TO THE PRINCIPLE THAT THE PROVINCIAL GOVERNMENT SHOULD BEAR ALL START-UP COSTS FOR ANNEXATION ASSOCIATED WITH SUCH THINGS AS: EARLY RETIREMENT OF STAFF WHERE NECESSARY; ONE-TIME PURCHASE OF ESSENTIAL INFRASTRUCTURE IN PORTIONS OF THE COUNTY OF PARKLAND AND THE MUNICIPAL DISTRICT OF STURGEON; ADJUSTMENTS IN SERVICE LEVELS MADE NECESSARY UPON BOUNDARY ADJUSTMENT; AND OTHER RELATIVELY ROUTINE PROCEDURAL OR ADMINISTRATIVE ADJUSTMENTS SUCH AS ROAD SIGNING, AND VEHICLE IDENTIFICATION, FOR EXAMPLE.

COUNCIL HAS ACCEPTED THE PRINCIPLE THAT FINANCIAL LOSSES ARISING AS A RESULT OF CHANGES IN GRANT STRUCTURES IN THE EXPANDED CITY SHOULD BE COMPENSATED BY SPECIAL ASSISTANCE ARRANGEMENTS WITH THE PROVINCIAL GOVERNMENT. THIS MIGHT BE ACCOMPLISHED IN A SIMILAR MANNER TO THAT USED IN THE CROWSNEST PASS AMALGAMATION PROGRAM, OR OTHER PROGRAMS OF LOCAL GOVERNMENT UNIFICATION UNDERTAKEN IN SEVERAL CANADIAN PROVINCES, MOST NOTABLY MANITOBA AND ONTARIO.

IN EARLIER REMARKS, BOTH DR. HARRIES AND MR. PLUNKETT HAVE ELABORATED ON A THIRD PRINCIPLE RELATED TO FUTURE FINANCIAL AND ASSESSMENT PRACTICES. COUNCIL IS COMMITTED TO THE CONCEPT OF DIVIDING THE FUTURE CITY INTO URBAN AND RURAL DISTRICTS FOR THE PURPOSES OF FINANCE, TAXATION, ASSESSMENT, AND THE PROVISION OF MOST MUNICIPAL SERVICES. IN OTHER WORDS, EDMONTON HAS PROPOSED THAT THERE WOULD BE A DISTINCTION IN THE LEVEL OF SERVICES AVAILABLE TO RURAL AS OPPOSED TO THE URBAN OR DEVELOPED AREAS OF THE FUTURE CITY. FURTHER, THIS DIFFERENTIAL IN DELIVERY TYPE OF SERVICES BY AREA WOULD BE REFLECTED IN LEVELS OF TAXATION, ASSESSMENT PRACTICES AND DECENTRALIZED MUNICIPAL OPERATIONS.

FINALLY IN THE FINANCIAL AREA, COUNCIL WILL SEEK --UPON BOUNDARY ADJUSTMENT - -A COMMITMENT OF THE PROVINCIAL GOVERNMENT TO CONTINUE AND POSSIBLY SUPPLEMENT EXISTING ASSISTANCE PROGRAMS CURRENTLY AVAILABLE TO AREAS BROUGHT UNDER THE UNIFICATION SCHEME.

TURNING TO THE POTENTIAL IMPACT OF BOUNDARY ADJUSTMENT ON THE ADMINISTRATIVE OPERATIONS OF THE FUTURE CITY, THE POLICY HAS BEEN ADOPTED THAT ADMINISTRATIVE SYSTEMS, OPERATING PROCEDURES, POLICIES, DATA PROCESSING SYSTEMS, AND MANAGEMENT STRUCTURES WILL BE STANDARDIZED FOR THE INTEGRATED ADMINISTRATION WITHIN ONE YEAR OF BOUNDARY ADJUSTMENT.

I WOULD NOW LIKE TO TURN TO A NUMBER OF SPECIFIC POLICIES WHICH HAVE INFLUENCED DEVELOPMENT OFTHE CITY'S DETAILED IMPLEMENTATION PLAN - -A PLAN WHICH WE INTEND TO PRESENT AT A LATER POINT IN THESE PROCEEDINGS. ALL BYLAWS, LAND USE PLANS, DEVELOPMENT CONTROL PRACTICES, ZONING, TRAFFIC AND BYLAW ENFORCEMENT PROCEDURES WOULD BE STANDARDIZED WITHIN ONE YEAR OF UNIFICATION.

IN THIS

REGARD, WE HAVE REVIEWED THE EXPERIENCES OF A NUMBER OF OTHER MUNICIPALITIES

ON THIS CONTINENT WITH UNIFICATION. IT IS OUR OPINION THAT IN THOSE INSTANCES WHERE SUCH TRANSITION HAS OCCURRED OVER A THREE TO FIVE YEAR PERIOD, MANY SERIOUS DIFFICULTIES HAVE TYPICALLY ARISEN IN THE EFFICIENT CONTINUED DELIVERY OF MUNICIPAL SERVICES, WITH CONSEQUENT UNNECESSARY CONFUSION AND FRUSTRATION BEING EXPERIENCED BY THE PUBLIC AND LOCAL GOVERNMENT REPRESENTATIVES ALIKE. IT IS OUR CONSIDERED VIEW THAT GIVEN THE UNIQUE SITUATION IN EDMONTON WHERE A VERY LARGE PORTION OF THE TOTAL POPULATION IS NOW SERVED BY THE CENTRAL ADMINISTRATION, AND GIVEN THE RELATIVE SOPHISTICATION OF THE ST. ALBERT AND STRATHCONA ADMINISTRATIONS, THAT THE UNIFIED CITY WILL BE CAPABLE OF AMALGAMATING AND STANDARDIZING ALL PROCEDURES, BYLAWS AND DEVELOPMENT FUNCTIONS WITHIN ONE YEAR OF BOUNDARY ADJUSTMENT. THIS APPROACH WILL, IT IS EXPECTED, MINIMIZE DIFFICULTY OCCASIONED IN OTHER COMMUNITIES WHERE LONGER PERIODS OF TRANSITION HAVE BEEN USED.

AS I INDICATED PREVIOUSLY, EDMONTON COUNCIL IS COMMITTED, ON IMPLEMENTATION, TO PROVIDING ALL EMPLOYEES OF THE ANNEXED AREAS WITH AN OPPORTUNITY OF EMPLOYMENT WITH THE CITY OF EDMONTON AT AN EQUIVALENT LEVEL OF REMUNERATION.

THE CITY OF EDMONTON IS CONCERNED THAT UPON ANNEXATION OR PRIOR TO UNIFICATION THAT THERE SHOULD BE SOME SCRUTINY IN THE DEVELOPMENT AND EXERCISE OF BUDGETS FOR THOSE AREAS PROPOSED FOR UNIFICATION WITH THE CITY. AS A CONSEQUENCE, IT IS EDMONTON'S VIEW THAT THE MINISTER OF MUNICIPAL AFFAIRS SHOULD DIRECT A REVIEW OF BUDGETS OF THE ADJACENT MUNICIPALITIES PRIOR TO THE EFFECTIVE DATE OF THE ANNEXATION. BASED ON EXPERIENCES IN OTHER AREAS OF CANADA AND THIS CONTINENT THIS APPEARS DESIREABLE TO PREVENT THE INCURRING OF EXTRAORDINARY EXPENDITURES, OR THE UNWARRANTED DISPOSITION OF ASSETS PRIOR TO THE EFFECTIVE DATE OF UNIFICATION OR ANNEXATION.

IT HAS BEEN PROPOSED THAT AN ADVISORY COMMITTEE ON TRANSITIONAL REQUIREMENTS BE IMMEDIATELY ESTABLISHED. THIS COMMITTEE BE ESTABLISHED IN ADVANCE OF UNIFICATION IN CONJUNCTION WITH THE SENIOR STAFF OF THE AFFECTED ADMINISTRATIONS. THE PURPOSE OF THE COMMITTEE WOULD BE TO INVESTIGATE AND RESOLVE PROBLEMS OF STAFF ASSIMILATION, LABOUR AGREEMENTS, AND SERVICE LEVEL REQUIREMENTS IN THE AREA PROPOSED FOR ANNEXATION PRIOR TO THE EFFECTIVE DATE OF ANY ANNEXATION ORDER.

I WOULD NOW LIKE TO BRIEFLY OUTLINE THE CITY'S PROPOSED APPROACH IN THREE KEY AREAS WHICH HAVE BEEN THE SUBJECT OF CONSIDERABLE INQUIRY DURING THE PREPARATION OF OUR APPLICATION--NAMELY, THE EFFECT OF THIS PROPOSAL ON FUTURE TELEPHONE, POWER AND GAS FRANCHISE ARRANGEMENTS. WITH RESPECT TO THE TELEPHONE UTILITY, IMMEDIATELY FOLLOWING BOUNDARY ADJUSTMENT EDMONTON WILL MAKE APPLICATION TO ASSUME RESPONSIBILITIES FOR THE PROVISION OF TELEPHONE SERVICE IN THE EXPANDED AREA, AND THE PURCHASE OF THOSE FACILITIES OWNED BY ALBERTA GOVERNMENT TELEPHONES.

THE FUTURE REQUIREMENTS FOR POWER GENERATION AND DISTRIBUTION AND THE CITY'S CAPABILITY TO PROVIDE POWER SERVICE TO THE EXPANDED AREA HAS BEEN STUDIED IN DEPTH.

AS A CONSEQUENCE, THE CITY HAS ADOPTED THE POSITION THAT IT WILL

UNDERTAKE TO PROVIDE POWER SERVICE TO THE ANNEXED AREA AT THE EARLIEST OPPORTUNITY, DEPENDENT ONLY UPON THE CITY'S CAPABILITY TO PROVIDE EFFICIENT AND EFFECTIVE SERVICE AND TO FINANCE THE TRANSFER OF THIS RESPONSIBILITY FROM THE UTILITY PRESENTLY PROVIDING THAT SERVICE.

IT IS EXPECTED THAT THIS

TRANSFER OF POWER DISTRIBUTION RESPONSIBILITY COULD BE ACCOMPLISHED BY ABOUT 1985.

IN PREPARING THIS APPLICATION, CITY REPRESENTATIVES THOROUGHLY RESEARCHED THE POTENTIAL IMPLICATIONS OF THE BOUNDARY ADJUSTMENT ON GAS FRANCHISE ARRANGEMENTS.

AS A RESULT, THREE PRINCIPLES HAVE BEEN ACCEPTED TO GUIDE FINAL

SETTLEMENT OF FUTURE GAS FRANCHISE PRACTICES AND AGREEMENTS. FIRST, THE CITY WOULD HONOUR ALL EXISTING GAS FRANCHISE ARRANGEMENTS CURRENTLY IN EFFECT WITHIN THE AREA PROPOSED FOR ANNEXATION.

SECONDLY, UPON EXPIRY OF EXISTING

GAS FRANCHISE AGREEMENTS THE CITY WOULD APPLY A FRANCHISE RATE WITHIN THE ANNEXATION AREA BASED UPON THE FORMULA IN EFFECT WITHIN THE AREA DELINEATED BY THE CURRENT BOUNDARIES OF THE CITY OF EDMONTON. AND FINALLY, THE CITY WILL ELIMINATE THE GAS FRANCHISE TAX ON ALL HIGH LOAD INDUSTRIAL CUSTOMERS. THE GAS FRANCHISE TAX ON THESE CUSTOMERS INCLUDING SEVERAL WITHIN THE EXISTING CITY LIMITS AND EDMONTON POWER, WILL BE REPLACED BY A FIXED PERCENTAGE LEVY APPROXIMATING THE PROPERTY TAX WHICH WOULD OTHERWISE BE COLLECTED FROM THE UTILITY PROVIDING GAS SERVICE IN THE TOTAL AREA AT THE PRESENT TIME.

I HAVE MENTIONED THE SERIOUS CONCERNS OF THE CITY THAT THERE BE NO CONSEQUENTIAL DISRUPTION IN THE DELIVERY OF PROTECTIVE SERVICES - -FIRE AND POLICE - -TO THE ANNEXATION AREA. IN THIS REGARD, THE CITY WOULD-IN CONJUNCTION WITH THE PROVINCE OF ALBERTA--PROCEED TO NEGOTIATE AGREEMENT ON AN INTERIM ARRANGEMENT WITH THE ROYAL CANADIAN MOUNTED POLICE IN ADVANCE OF BOUNDARY ADJUSTMENT. THE PREFERRED ARRANGEMENT WOULD BE TO CONTINUE THE PROVISION OF THE FEDERAL GOVERNMENT SERVICE FOR A MAXIMUM OF THREE YEARS IN SPECIFIED AREAS OF THE PROPOSED FUTURE CITY, AFTER WHICH TIME THE CITY WOULD ASSUME FULL RESPONSIBILITY FOR POLICING IN THE TOTAL AREA.

THE POLICE DEPARTMENT HAS CONDUCTED, I SHOULD ADVISE YOU, A VERY THOROUGH ANALYSIS OF ITS REQUIREMENTS AND THE POSSIBLE STAGING OF AN EXTENSION OF

10.

EDMONTON POLICE JURISDICTION. THE EDMONTON POLICE DEPARTMENT, WHICH HAS VERY ENVIABLE AND HIGHLY REGARDED PERFORMANCE RECORD, ENVISIONS NO SERIOUS DIFFICULTY IN PROVIDING POLICE SERVICES WITHIN TWO YEARS TO THE TOTAL AREA PROPOSED FOR ANNEXATION, PROVIDED A SATISFACTORY AGREEMENT FOR THIS STAGED TRANSITION OF FEDERAL POLICE RESPONSIBILITY TO EDMONTON FORCES CAN BE ACHIEVED. WE HAVE, INCIDENTLY, HAD PRELIMINARY INDICATIONS FROM THE SOLICITOR GENERAL'S DEPARTMENT THAT THEY HAVE NO SERIOUS RESERVATIONS WITH SUCH AN AGREEMENT.

THE EDMONTON POLICE DEPARTMENT HAS ADVISED THAT IMMEDIATELLY UPON EXPANSION OF THE CITY BOUNDARIES EDMONTON FORCES WOULD BE CAPABILE OF EXPANDING SERVICES TO ALL AREAS OF THE COUNTY OF PARKLAND, MAJOR PORTIONS OF THE MUNICIPAL DISTRICT OF STURGEON AND ALL AREAS CURRENTLY POLICED BY THE LEDUC DETACHMENT OF THE R.C.M.P. SOUTH OF THE CITY OF EDMONTON'S CURRENT LIMITS. WITHIN SIX MONTHS OF THE EFFECTIVE DATE OF ANNEXATION, EDMONTON FORCES WOULD BE CAPABLE OF ASSUMING COMMAND OF MAJOR PORTIONS NOW SERVICED BY THE SHERWOOD PARK R.C.M.P. DETACHMENT.

TRANSITION OF POLICING RESPONSIBILITY FOR ST. ALBERT COULD BE

ACCOMPLISHED WITHIN TWELVE MONTHS OF THE EFFECTIVE DATE OF ANNEXATION, AND WITHIN 24 MONTHS IN ALL REMAINING AREAS, NAMELY PORTIONS EAST OF HIGHWAY 21 NOW POLICED FROM THE FORT SASKATCHEWAN, SHERWOOD PARK, AND TOFIELD R.C.M.P. DETACHMENTS.

WITH RESPECT TO FIRE PROTECTION SERVICES, THE FIRE DEPARTMENT HAS CONDUCTED DETAILED STUDIES SIMILAR TO THOSE INQUIRIES CARRIED OUT BY THE EDMONTON POLICE DEPARTMENT. MANAGEMENT OF THE EDMONTON FIRE DEPARTMENT HAS CONCLUDED THAT IT IS WELL WITHIN THE DEPARTMENT'S CAPABILITY, PROVIDED AGAIN, THAT PROPER STAGED TRANSITION OF RESPONSIBILITIES CAN BE ARRANGED, CAN BE ESTABLISHED TO PROVIDE

11.

AN EQUIVALENT, IF NOT IMPROVED AND EXPANDED LEVEL OF FIRE PROTECTION SERVICES WITHIN THE ANNEXATION AREA. I SHOULD POINT OUT, HOWEVER, THAT THE COSTS OF THE EXPANSION OF THE FIRE PROTECTIVE SERVICES TO AN EDMONTON STANDARD FOR ALL AREAS WOULD BE SUBSTANTIAL.

ALLOCATIONS HAVE BEEN MADE IN THE FINANCIAL

ANALYSIS PRESENTED BY HU HARRIES & ASSOCIATES TO ENSURE THAT EXISTING LEVELS OF SERVICES ARE MAINTAINED IMMEDIATELY UPON ANNEXATION, AND THAT IMPROVEMENTS ARE PHASED IN FOR ST. ALBERT, SHERWOOD PARK, AND RURAL PORTIONS OF THE COUNTY OF STRATHCONA.

THE ASSOCIATED COST INCREASES FOR FIRE PROTECTION ARE, IN

TURN, REFLECTED IN THE MILL RATE AND TAX PROJECTIONS CONTAINED IN OUR FINANCIAL PROJECTIONS.

SPECIFICALLY, THE CITY OF EDMONTON WOULD EXPAND ITS FIRE PROTECTION SERVICES INTO ST. ALBERT AND SHERWOOD PARK. IN THE CASE OF ST. ALBERT THERE WOULD BE AN IMMEDIATE UPGRADING OF THE STANDARD OF SERVICE PROVIDED. UPGRADING OF THE STANDARD OF SERVICE PROVIDED IN THOSE RURAL PORTIONS OF THE BOUNDARY WOULD MOST DEFINITELY DEPEND ON THE CITY'S CAPABILITY TO FINANCE THESE IMPROVEMENTS ON A STAGED BASIS AND THE WILLINGNESS AND COOPERATION OF THE CURRENT VOLUNTEER OPERATORS TO CONTINUE TO PERFORM THEIR CURRENT FUNCTIONS IN SOME RURAL AREAS FOR A SHORT TRANSITION PERIOD DURING STAFF RECRUITMENT AND TRAINING. ALL FIREFIGHTERS CURRENTLY IN THE EMPLOY OF THE CITY OF ST. ALBERT AND THE COUNTY OF STRATHCONA WOULD BE OFFERED EMPLOYMENT AND TRAINING OPPORTUNITIES.

NOTWITHSTANDING THESE PLANS AND ASSOCIATED COSTS IT CAN BE CONCLUDED THAT THERE WILL BE AN IMMEDIATE IMPROVEMENT IN THE FIRE SERVICE AVAILABLE IN LARGE AREAS OF THE PROPOSED ANNEXATION BOUNDARY. THIS WOULD IMMEDIATELY OCCUR AS A CONSEQUENCE OF THE SIGNIFICANT SUPPORT FUNCTION PROVIDED BY THE E.F.D. AS AN AUTOMATIC SECOND RESPONDING FIRE SERIVCE--A SERVICE THAT DOES NOT PRESENTLY EXIST IN THESE AREAS. 12.

WITH RESPECT TO PHYSICAL SERVICES THE POLICIES THAT WOULD BE IMPLEMENTED UPON BOUNDARY ADJUSTMENT ARE TWO-FOLD. FIRST, THE PROVISION OF IMPROVED PHYSICAL SERVICES, SUCH AS WATER, SEWERAGE TREATMENT, STORM DRAINAGE CONNECTIONS AND SOLID WASTE DISPOSAL TO RURAL RESIDENTIAL AREAS AND COUNTRY RESIDENTIAL ESTATES WOULD ONLY BE PROVIDED AFTER ANNEXATION ON A COST-RECOVERY BASIS, OR IN THOSE FEW CIRCUMSTANCES WHERE ENVIRONMENTAL AND HEALTH SAFETY CONSIDERATIONS MIGHT NECESSITATE IMPROVEMENT. SECONDLY, IT WOULD BE THE CITY'S DESIRE THAT PRIVATE CONTRACTORS CURRENTLY EMPLOYED OR PROVIDING SERVICES SUCH AS SOLID WASTE DISPOSAL IN THE ANNEXED AREAS CONTINUE TO BE RETAINED BY THE CITY OF EDMONTON FOR THE FORESEEABLE FUTURE.

IN CLOSING, I WOULD LIKE TO APPRISE YOU OF EDMONTON'S INTENTIONS WITH RESPECT TO FUTURE LAND USE AND DEVELOPMENT CONTROL IN THE EXPANDED AREA. I SHOULD ALSO ADVISE YOU OF RELATED SERVICING POLICIES NOW ADOPTED BY EDMONTON COUNCIL.

UPON UNIFICATION THE CITY WOULD SEEK A MAJOR EXPANSION OF ITS ROLE ON THE EDMONTON REGIONAL PLANNING COMMISSION TO MORE EFFECTIVELY INFLUENCE DECISIONS FOR SUBDIVISION AND ZONING EXTENDING BEYOND THE FUTURE CITY'S PERIPHERY. UNDER THIS EXPANDED CONTROL NO FURTHER SUBDIVISION OR ZONING OF COUNTRY RESIDENTIAL OR HOBBY FARM DEVELOPMENTS WOULD BE PERMITTED ON CLASS 4 SOILS OR BETTER. DEVELOPMENTS OF THIS NATURE WOULD ALSO BE RESTRICTED TO LOCATIONS NOT SUITABLE FOR URBAN STANDARD OF SERVICING, FUTURE URBAN DEVELOPMENT AT HIGHER DENSITIES, OR FOR VIABLE AGRICULTURAL PURSUITS BOTH WITHIN AND ADJACENT THE NEW CITY BOUNDARIES.

TO FACILITATE IMPROVED LONG RANGE PLANNING IN THE REGION THE CITY WOULD CONFIRM ITS COMMITMENT TO THE CONTINUED GROWTH AND SERVICING OF FOUR PRINCIPAL

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CENTERS IN THE METROPOLITAN AREA.

THESE CENTERS OF RESIDENTIAL, AND

INDUSTRIAL DEVELOPMENT WOULD INCLUDE THE UNIFIED EDMONTON METROPOLITAN AREA, LEDUC, FORT SASKATCHEWAN, AND STONY PLAIN-SPRUCE GROVE.

A SIMILAR GROWTH

STRATEGY IS, INCIDENTALLY, RECOGNIZED IN BOTH THE DRAFT EDMONTON REGIONAL PLAN AND THE EDMONTON REGIONAL GROWTH STUDY.

FINALLY, THE CITY OF EDMONTON WOULD BE WILLING TO EXPAND ITS COMMITMENTS TO SERVICE AREAS BEYOND ITS BOUNDARY ONCE THE CURRENT BOUNDARY SITUATION HAS BEEN RESOLVED AND CLEAR DIRECTION OF THE LONG TERM BOUNDARIES OF THE CITY ADJACENT JURISDICTION HAS BEEN CONFIRMED. AFTER THESE ESSENTIAL BOUNDARY ASSURANCES HAVE BEEN OBTAINED EDMONTON WOULD UNDERTAKE TO PROVIDE SERVICE SYSTEM EXPANSIONS BEYOND THE BOUNDARY REQUIRED TO SUPPORT THE DEVELOPMENT OF COMMUNITIES WITH BALANCED INDUSTRIAL AND RESIDENTIAL TAX BASES, ESPECIALLY THOSE COMMUNITIES OF FORT SASKATCHEWAN, LEDUC, STONY PLAIN, AND SPRUCE GROVE. IN ASSOCIATION WITH THIS POLICY THE CITY WOULD EXPAND ITS SERVICING SUPPORT FOR MORE LIMITED DEVELOPMENT OF COMMUNITIES MORE THAN FIVE MILES FROM THE EXPANDED BOUNDARY. FINALLY, THE CITY WOULD ENDEAVOUR TO THE EXTENT PRACTICAL TO SUPPORT THE DEVELOPMENT OF COMMUNITIES IN THE EDMONTON REGION LOCATED BEYOND THE IMMEDIATE INFLUENCE OF FORT SASKATCHEWAN, LEDUC, STONY PLAIN, AND SPRUCE GROVE. THESE PRINCIPALS AND POLICIES OF LAND DEVELOPMENT AND SERVICING AE IN THE CITY'S VIEW SUPPORTIVE OF RECENT AGREEMENTS BETWEEN THE CITY OF EDMONTON AND THE MINISTER OF ENVIRONMENT TO COOPERATE IN IMPLEMENTATION OF FEASIBLE ELEMENTS OF THE EDMONTON REGIONAL UTILITIES PROGRAM.

IN CONCLUSION, I WOULD LIKE TO BRIEFLY ADVISE YOU OF A FEW OTHER POLICY APPROACHES ADOPTED BY THE CITY OF EDMONTON IN ASSEMBLY OF THE EDMONTON ANNEXATION APPLICATION.

14.

THE CITY, AS HAS ALREADY BEEN INDICATED, WOULD LIKE TO RESERVE THE OPPORTUNITY TO INTRODUCE SUPPLEMENTARY MATERIAL ON BOTH THE TRANSITIONAL IMPLICATIONS AND REQUIREMENTS OF THE PROPOSED BOUNDARY ADJUSTMENTS, AND SUGGESTIONS OF CONDITIONS OF TRANSITION WHICH MAY HELP TO EFFECT AN EFFICIENT, ECONOMIC AND ORDERLY CHANGE MUNICIPAL RESPONSIBILITY. IN THIS REGARD, AND IN CONTEMPLATION OF FURTHER SUBMISSIONS, I WOULD LIKE TO COMMENT BRIEFLY ON TWO OTHER ASPECTS WHICH WILL UNDOUBTEDLY RECEIVE CONSIDERABLE ATTENTION AS THIS HEARING PROCEEDS.

FIRST OF ALL, THE CITY RECOGNIZES THAT THE USE OF TRADITIONAL CONDITIONS OF ANNEXATION WHICH PRESCRIBE THAT FOR FARMLAND TAXATION PURPOSES THE MUNICIPALITY RECEIVING LANDS THROUGH ANNEXATION MUST FOLLOW ASSESSMENT AND TAXATION PRACTICES OF THE PREVIOUS MUNICIPALITY UNTIL DEVELOPMENT TO ALTERNATE USE OCCURS MAY NOT BE PRACTICAL IN THE CASE OF THIS RATHER UNIQUE APPLICATION.

EDMONTON HAS THEREFORE ASSUMED IN ITS ANNEXATION ANALYSIS THAT WHILE SIMILAR CONDITIONS MAY CONTINUE TO APPLY, AN OPPORTUNITY COULD BE ACCORDED TO EXERCISE A POLICY WHERE TAXES ON THOSE LANDS IN THE COUNTY OF STRATHCONA WOULD APPROXIMATE RURAL TAXES BEING PAID IN OTHER ADJACENT AREAS, SUCH AS THE COUNTIES OF BEAVER, LAMONT, OR THE MUNICIPAL DISTRICT OF STURGEON. IN ANY EVENT, FARMLAND TAX PRACTICES SHOULD BE DEVISED TO ENSURE THAT THERE NOT BE ANY INCREASE IN TAXES PAID ON BONA FIDE FARM OPERATIONS AS A CONSEQUENCE OF ANNEXATION. FURTHER, IF CURRENT PRACTICES ARE ADOPTED WHERE IN A RURAL MUNICIPALITY FARM BUILDINGS ARE EXEMPTED FROM ASSESSMENT IN THE EXPANDED AREA, ALL FARMS WOULD PAY LESS TAX GIVEN THE LOWER MILL RATE OF THE CITY OF EDMONTON.

QUESTIONS ARE FREQUENTLY RAISED ABOUT THE CITY'S CAPABILITY TO EFFECTIVELY MANAGE RURAL LANDS. IT SHOULD BE NOTED THAT THE MANAGEMENT AND SERVICING OF

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SUCH LANDS IS NOT NEW TO THE CITY OF EDMONTON. THE CITY OF EDMONTON HAS AT VARIOUS TIMES IN ITS HISTORY, HAD LARGE TRACTS OF RURAL LAND WITHIN ITS JURISDICTION. THERE IS, I WOULD SUBMIT, VERY LITTLE EVIDENCE TO SUGGEST THAT THE CITY HAS HAD SERIOUS DIFFICULTY IN PROVIDING SERVICES REQUIRED IN RURAL AEAS.

INDEED, IT MIGHT BE FORCIBLY SUGGESTED, AS MR- LORE HAS DONE, THAT

LARGER URBAN MUNICIPALITIES, INCLUDING THE CITY OF EDMONTON ARE BETTER ABLE TO RESIST THE PRESSURES WHICH INCREASINGLY RESULT IN FRAGMENTED LOW DENSITY SUBDIVISION OF PRIME AGRICULTURAL LANDS AND THE CONSEQUENT INEFFICIENT WASTAGE OF OUR SCARCE AGRICULTURAL LAND RESOURCES FOR SEMI-URBAN PURPOSES.

ONE OTHER ISSUE HAS RECEIVED CONSIDERABLE ATTENTION THROUGHOUT THE CITY'S STUDIES ON ANNEXATION.

MANY INDIVIDUALS AND GROUPS HAVE EXPRESSED SOME

RESERVATIONS ABOUT THE POTENTIAL IMPLICATIONS OF BOUNDARY ADJUSTMENT ON MACHINERY AND EQUIPMENT INTENSIVE INDUSTRIAL HOLDINGS.

DR. HARRIES HAS

INDICATED TO YOU THAT THE FINANCIAL ANALYSIS IS BASED ON PROPOSITIONS DISCUSSED EXTENSIVELY BY COUNCIL IN JANUARY AND MARCH 1979, WHEREBY IT HAS BEEN DETERMINED THAT THE CITY SHOULD PROCEED TO IMPLEMENT AN EXPANDED TAX SYSTEM.

IT IS THE CITY'S POSITION THAT AN EXPANDED ASSESSMENT AND TAXATION

SYSTEM CAN BE DEVISED WHEREBY A MACHINERY AND EQUIPMENT TAX CATEGORY AND ASSESSMENT PROCEDURE COULD BE INTRODUCED IN ADDITION TO THE EXISTING BUILDING AND PROPERTY, AND BUSINESS TAX SYSTEMS.

NO SERIOUS DIFFICULTY IN ADOPTING

SUCH A THREE-FOLD SYSTEM IS CONTEMPLATED. THE IMPACT OF ITS INTRODUCTION IS EXPECTED TO BENEFIT THOSE MACHINERY AND EQUIPMENT INTENSIVE CONCERNS EXISTENT BOTH WITHIN AND AJDACENT THE CITY'S BOUNDARIES TODAY.

FURTHER, THE

INTRODUCTION OF THIS PRACTICE WOULD ENSURE THAT THE INTERESTS AND UNIQUE CHARACTERISTICS OF EXISTING AND FUTURE NON-TYPICAL HEAVY INDUSTRIAL CONCERNS BOTH WITHIN THE CITY'S CURRENT BOUNDARIES AND WITHIN ANNEXED PORTIONS OF THE

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COUNTIES OF PARKLAND AND STRATHCONA, AND THE MUNICIPAL DISTRICT OF STURGEON ARE RECOGNIZED IN THE FORM OF A MORE EQUITABLE ASSESSMENT AND TAXATION APPROACH.

MR. CHAIRMAN AND MEMBERS OF THE BOARD, THAT CONCLUDES THE CITY'S PRESENTATION ON THE MAJOR TRANSITIONAL IMPLICATIONS OF THE PROPOSED BOUNDARY ADJUSTMENT. I TRUST THAT I HAVE GIVEN YOU A FULLER APPRECIATION OF THE EXTENT OF THE CITY'S INVESTIGATIONS, AND OF EDMONTON'S SINCERE EFFORTS TO ENSURE THAT ANY CHANGE IN THE JURISDICTION OF THE CITY IN THE METROPOLITAN AREA IS ACHIEVED EXPEDIENTLY, ECONOMICALLY, AND WITHOUT REDUCTION IN EITHER THE QUALITY OR TIMING OF SERVICE DELIVERY TO AFFECTED RESIDENTS AND CONCERNS.

YOUR ATTENTION AND COURTESY DURING THE PRESENTATION OF THE CITY'S SUBMISSION TO THIS POINT HAS BEEN SINCERELY APPRECIATED.

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APPENDIX A

REPORT TO EDMONTON CITY COUNCIL SEPTEMBER 11, 1979 ON "SUGGESTED POLICY DIRECTIONS FOR IMPLEMENTATION OF THE ANNEXATION PROPOSAL"

APPROVED IN PRINCIPLE BY COUNCIL - SEPTEMBER 11, 1979

ENCLOSURE III EDMONTON ANNEXATION PROJECT - RECOMMENDATIONS ON SUGGESTED POLICY DIRECTIONS - IMPLEMENTATION OF ANNEXATION PROPOSAL INTRODUCTION As a result of several matters raised during the detailed consultant investigations following Council's March 20, 1979 deliberations, and in preparation of the City's detailed annexation submissions the Annexation Project Steering Committee recently instructed staff to prepare a report identifying policy issues arising from the City's unification studies. Staff were further directed to present recommendations on suggested future policy directions for Commission Board consideration. The requested report was prepared and subsequently presented to Commission Board, June 13, 1979 at which time Commission Board considered and approved the recommendations of staff. Proposed transition principles approved by the Commission Board are outlined in this report. Finalization of the City's detailed submissions has proceeded on the basis of these policy guidelines. POLICY DIRECTIONS Annexation policy directions recommended to Council are described below. It is expected that Council's approval in principle of these policy directions will greatly enhance and strengthen the credibility of the City's position before the Alberta Local Authorities Board, and subsequently the Provincial Cabinet. Annexation Staff will be in attendance at Council to provide further background to each of the policy directions recommended, and to respond to Council's inquiries. In addition, financial consultants to the Annexation Project will be available to elaborate on the financial implications of those policy items which refer to taxation, assessment, or City financial matters.

Prepared by: Annexation Project Staff September 4, 1979

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RECOMMENDED POLICY DIRECTIONS

ADMINISTRATION AND POLITICAL REPRESENTATION 1.

That careful consideration be given to the use of present municipal buildings in the area proposed for annexation as district offices to provide as much decentralization of service delivery as is consistent with economic considerations;

That the City's submission indicate a commitment to the necessity for adjustment upon annexation to provide for majority representation (on a per capita basis) by the expanded City on the Edmonton Regional Planning Commission, and for the establishment of City veto powers on subdivision and zoning (extra-jurisdictional control) of rural lands for up ,to 5 miles from the expanded City boundary;

That a commitment be made to providing specific representation on a restructured Edmonton City Council for the communities of St. Albert, Sherwood Park and the rural residents of the eastern portion of the County of Strathcona; and

That the City's annexation submission indicate that - possibly in conjunction with the Mayor's Advisory Committee on Local Government - detailed investigations related to the size and composition of the expanded City Council, luture ward boundaries, election procedures and other local government restructuring requirements will be undertaken with the first year of boundary adjustment.

II FINANCE 1.

That the Province of Alberta bear all start-up costs of the annexation associated with: early retirement of staff; onetime purchase of infra-structure; service level adjustments; and other items including road signing, vehicle identification, etc.;

That any financial losses in grants arising directly as a result of the creation of an expanded City of Edmonton be compensated for in a special assistance arrangement from the Province of Alberta;

That the expanded City of Edmonton be divided into urban and rural areas for the purposes of financing operations, taxation, "assessment, and service provision; and

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That the Provincial Government be requested to continue or supplement existing assistance programs currently available to the areas proposed for annexation, after incorporation within City jurisdiction.

III POLICY DEVELOPMENT AND MANAGEMENT 1.

That administrative systems, operating procedures and policies, data processing systems and management structures be standardized within the expanded City of Edmonton;

IV IMPLEMENTATION 1.

That all bylaws (building, zoning, traffic, etc.) currently in force in the City of St. albert and the County of Strathcona remain in effect for a maximum of one year following unification, after which procedures will be standardized;

That all those individuals currently in the permanent employ of the annexed municipalities continue to be employed at an equivalent level of remuneration by the expanded City of Edmonton;

That ministerial review of the budgets of adjacent municipalities be initiated prior to the effective date of the annexation to prevent the incurring of extraordinary expenditures or the unwarranted disposition of assets;

That an Advisory Committee on Transitional Requirements be immediately established to investigate staff assimilation and service level requirements in the area proposed for annexation;

That immediately following boundary adjustment the City of Edmonton make application to assume responsibilities for the provision of telephone service within the approved annexation area;

That the City undertake to provide power service to the annexed area at the earliest opportunity dependent only on the City meeting the requirements of provincial legislation governing such transfers of servicing responsibility (including the City's capability to provide efficient and effective service) from the utility presently providing that service; and

7(a) That the City honour existing gas franchise arrangements currently in effect within the area proposed for annexation; (b) That, upon expiry of these franchise agreements, the City apply a franchise rate within the area proposed for annexation based upon the formula in effect within the area delineated by the current City boundary; and

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Cc) That the City eliminate the gas franchise tax on all high load industrial users and replace this with a fixed percentage levy approximating property tax which would otherwise be collected from the utility providing this service. V

PUBLIC SAFETY SERVICES 1.

That the City of Edmonton, in conjunction with the Province of Alberta, negotiate an interim agreement with the R.C.M.P. to continue the provision of police service by federal forces for a maximum of three years, after which City Policy would provide an acceptable level of police service to the expanded area; and

That fire protection services in the expanded area be combined into a single department that will provide levels of service practical, but recognize differential levels of service to urban and rural components of the new City.

VI PHYSICAL SERVICES 1.

That the provision of improved physical services such as water, sewage disposal, and storm drainage to rural residential areas and country residential estates only be provided on a cost-recovery basis, or where environmental and health safety necessitate improved systems; and

That private contractors currently providing certain services, such as solid waste disposal, in rural and semi-urban portions of the proposed annexation area continue to be utilized as appropriate.

VII LAND USE 1.

That within the expanded City and the zone of City extrajurisdictional control no further subdivision or zoning of country residential or hobby farm developments be permitted on Class 4 soils or better, and that these developments be restricted to locations not suitable for: urban standard servicing; future urban development at higher density; or viable agricultural pursuits;

That the City confirm its commitment to the continued growth of four principal centres of urban residential and industrial development in the Edmonton Region, namely, (i) a unified Edmonton Metropolitan Area, ,(ii) Leduc, (iii) Fort Saskatchewan and (iv) Stony Plain/Spruce Grove; and

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That the City indicate that future service system expansions beyond the annexation boundary will be limited to the provision of services required to: support the development of communities with balanced industrial and residential tax bases in Fort Saskatchewan, Leduc, Stony Plain, and Spruce Grove; support the much more limited development of communities more than 5 miles from the expanded boundary; and support, to the extent practical, development of other communities in the Edmonton Region located beyond the immediate influence of the Fort Saskatchewan, Leduc, Stony Plain and Spruce Grove growth centres.

Prepared by: Annexation Project Staff September 4, 1979

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Members of Council considered a report prepared by the Planning Department dated August 31, 1979, a copy of the proposed agreement, and a Company Branch Search. Commissioner Savage requested that this item be withdrawn from the agenda. MOVED .Alderman Hewes - Chmiliar That this item be struck from the agenda. FOR THE MOTION: Mayor Dub, Ald. OPPOSED: Aid. ABSENT:

CARRIED

Purves, Aid. Butti, Campbell, Chmiliar, Hewes, Kennedy, Leger, Norris, Olsen Wickman Hayter, Newman

Edmonton Annexation Project - Report on Project Status, Hearing Preparations, Request for Essential Policy Assurances, and Resolution to Proceed

F.2.h

RECOMMENDATIONS: 1.

That City Council receive as information, Enclosure I, which provides a detailed explanation of the current status of the Edmonton Annexation Project;

That City Council receive as information Enclosure II, which provides a brief description of the Administration's intentions respecting presentation of the City's submissions to public hearings before the Special Division of the Alberta Local Authorities Board, recently established to review and present recommendations to the Provincial Cabinet on Edmonton's Annexation Petition filed March 21, 1979;

That City Council support "in - principle" those policy directions, outlined in Enclosure III, which are considered fundamental to effective presentation of the City's proposals on implementation of the recommended boundary adjustment; and

That City Council support the resolution attached as Enclosure IV, providing the Administration with authority to proceed to hearings on Edmonton's Annexation Application, and present such witnesses or materials as are considered necessary to effective representation of Edmonton's application before the Local Authorities Board.

CERTKD

23. September 11, 1979

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Members of Council considered a report prepared by the Annexation Project Staff dated September 4, 1979 and the following enclosures: 1. Edmonton Annexation Project - Report on Project Status 2. Procedural Outline - Presentation of Edmonton Annexation Submission to the Alberta Local Authorities Board. 3. Request for Commitment on Transitional Policy Directives. 4. Resolution - To Proceed with necessary representations to the Local Authorities Board in support of petition to annex certain lands to the City of Edmonton. 5. Addendum to Edmonton Annexation Petition - March 21, 1979. MOVED Alderman Kennedy - Olsen That the recommendations be concurred in. Alderman Newman entered the Council Chambers. MOTION on Recommendation 1 put and declared

CARRIED

FOR THE MOTION: Mayor Purves, Aid. Butti, Campbell, Chmiliar, Dub, Hewes, Kennedy, Leger, Newman, Norris, Olsen, Wickman Aid. Hayter ABSENT: MOTION on Recommendation 2 put and declared

CARRIED

FOR THE MOTION: Mayor Purves, Aid. Butti, Campbell, Chmiliar, Dub, Hewes, Kennedy, Leger, Newman, Norris, Olsen, Wickman Aid. Hayter ABSENT: Alderman Campbell left the Council Chambers. Alderman Hayter entered the Council Chambers. MOTION on Recommendation 3 put and declared

CARRIED

FOR THE MOTION: Mayor Purves, Aid. Butti, Chmiliar, Hayter, Hewes, Kennedy, Olsen Aid. Dub, Leger, Newman, Norris, Wickman OPPOSED: Aid. Campbell ABSENT: MOTION on Recommendation 4 put and declared

CARRIED

FOR THE MOTION: Mayor Purves, Ald. Butti, Chmiliar, Hayter, Hewes, Kennedy, Norris, Olsen Aid. Dub, Leger, Newman, Wickman OPPOSED: Aid. Campbell ABSENT:

24. September 11, 1979

5065

APPENDIX A

REPORT TO EDMONTON CITY COUNCIL SEPTEMBER 11, 1979 ON "SUGGESTED POLICY DIRECTIONS FOR IMPLEMENTATION OF THE ANNEXATION PROPOSAL"

APPROVED IN PRINCIPLE BY COUNCIL - SEPTEMBER 11, 1979

Prepared by: Annexation Project Staff September 4, 1979

18.

RECOMMENDED POLICY DIRECTIONS

ADMINISTRATION AND POLITICAL REPRESENTATION 1.

That the City's annexation submission indicate that - possibly in conjunction with the Mayor's Advisory Committee on Local Government - detailed investigations related to the size and composition of the expanded City Council, future ward boundaries, election procedures and other local government restructuring requirements will be undertaken with the first year of boundary adjustment.

II FINANCE 1.

That any financial losses in grants arising directly as a result of the creation of an expanded City of Edmonton be compensated for in a special assistance arrangement from the Province of Alberta;

That the expanded City of Edmonton be divided into urban and rural areas for the purposes of financing operations, taxation, "assessment, and service provision; and

19.

4. That the Provincial Government be requested to continue or supplement existing assistance programs currently available to the areas proposed for annexation, after incorporation within City jurisdiction. III POLICY DEVELOPMENT AND MANAGEMENT 1.

That administrative systems, operating procedures and policies, data processing systems and management structures be standardized within the expanded City of Edmonton;

IV IMPLEMENTATION 1.

That all those individuals cureently in the permanent employ of the annexed municipalities continue to be employed at an equivalent level of remuneration by the expanded City of Edmonton;

That an Advisory Committee on Transitional Requirements be immediately established to investigate staff assimilation and service level requirements in the area proposed for annexation;

That immediately following boundary adjustment the City of Edmonton make application to assume responsibilities for the provision of telephone service within the approved annexation area;

20.

(c) That the City eliminate the gas franchise tax on all high load industrial users and replace this with a fixed percentage levy approximating property tax which would otherwise be collected from the utility providing this service. V

PUBLIC SAFETY SERVICES 1.

VI PHYSICAL SERVICES 1.

That the provision of improved physical .services such as water, sewage disposal, and storm drainage to rural residential areas and country residential estates only be provided on a cost-recovery basis, or where environmental and health safety necessitate improved systems; and

That private contractors currently providing certain services, such as solid waste disposal, in rural and semi-urban portions of the proposed annexation area continue to be utilized as appropriate.

VII LAND USE 1.

21.

Prepared by: Annexation Project Staff September 4, 1979

22.

Members of Council considered a report prepared by the Planning Department dated August 31, 1979, a copy of the proposed agreement, and a Company Branch Search. Commissioner Savage requested that this item be withdrawn from the agenda. MOVED Alderman Hewes - Chmiliar That this item be struck from the agenda. FOR THE MOTION: Mayor Dub, OPPOSED: Ald. Aid. ABSENT:

CARRIED

Purves, Aid. Butti, Campbell, Chmiliar, Hewes, Kennedy, Leger, Norris, Olsen Wickman Hayter, Newman

Edmonton Annexation Project - Report on Project Status, Hearing Preparations, Request for Essential Policy Assurances, and Resolution to Proceed

F.2.h

RECOMMENDATIONS: 1.

That City Council receive as information, Enclosure I, which provides a detailed explanation of the current status of the Edmonton Annexation Project;

JLR

r:ity Clerk' 23. September 11, 1979

5064

MOTION on Recommendation 1 put and declared FOR THE MOTION: Mayor Purves, Aid. Butti, Campbell, Chmiliar, Dub, Hewes, Kennedy, Leger, Newman, Norris, Olsen, Wickman Aid. Hayter ABSENT:

CARRIED

MOTION on Recommendation 2 put and declared FOR THE MOTION: Mayor Purves, Aid. Butti, Campbell, Chmiliar, Dub, Hewes, Kennedy, Leger, Newman, Norris, Olsen, Wickman Aid. Hayter ABSENT: Alderman Campbell left the Council Chambers. Alderman Hayter entered the Council Chambers.

CARRIED

MOTION on Recommendation 3 put and declared FOR THE MOTION: Mayor Purves, Aid. Butti, Chmiliar, Hayter, Hewes, Kennedy, Olsen Aid. Dub, Leger, Newman, Norris, Wickman OPPOSED: Aid. Campbell ABSENT:

CARRIED

MOTION on Recommendation 4 put and declared FOR THE MOTION: Mayor Purves, Aid. Butti, Chmiliar, Hayter, Hewes, Kennedy, Norris, Olsen Aid. Dub, Leger, Newman, Wickman OPPOSED: Aid. Campbell ABSENT:

â&#x20AC;¢ September 11, 1979

24. 5066