AN OVERALL STRATEGY FOR EDMONTON'S DISTRICTS
A Product of the District Planning Program Planning and Building Department June 2,1987
AN OVERALL STRATEGY FOR EDMONTON'S DISTRICTS
Preamble Thei purpose
ofthis part ofthe district planning program report is to summarizeand
syn thesize
all the individual Districts' issues, concerns and potential itential solutions into one "strategy". The term "strategy" means those integrated procedures and approaches required to deal with the issues. The strategy has been developed
through a syntoesis of"bottom-up" work (i.e., sixdistrict planning reports and
rious "development strategies by the Area Plans Section of the Planning and
various
BuildinÂŁ lilding Department). A review of two "top-down" approaches derived from the
current rrent General Municipal Plan Growth Strategy and'the and the Department's Department'sLong Lons Range Ri Planning Branch's "Managing Urban Change" paper was also undertaken.
Figure 1 illustrates the relationship between the various components of the strategy.
Figure 1 Strategy Components
Strategy For Districts
Neighbourhoods
Employment
Rural &
Areas
Undeveloped
Facilities
Areas
& Impacts
Transportation
INTRODUCTION
The inner city and the suburbs, as shown in Map 1, provide the twofoci for a strategy
for dealing withthe issues in Edmonton's Districts. Agrowing ^fference exists between thetwo areas in terms oftheway urban ctow& anddevelopment needs to
be handled. Suburban expansionhas accounted rora considerable proportion of
recent City growth. In the inner city, only the Core area and certain specific neighbourhoods have shown signs of economic vigor, while many inner city neighbourhoods are experiencing slow growth and, in some cases, decline.
The overall strategy has the following general planning objectives:
i)
ii)
iii) iv)
good physical standards of development;
optimization of public and private investment in infrastructure, facilities and services;
properly located and staged development characterized by minimal
community and environmental impacts;
the protection of resources related land uses from premature development; and
v)
the provision of the opportunity for a diversified and stable economic base.
Thefollowing table summarizes the major themes in the overall strategy which are subsequently detailed under the fourcategories: Neighbourhoods, Employment
Areas, Rural and Undeveloped Areas, and Transportation Facilities and Impacts.
The table further separates the City into the "inner city" and the "suburbs" in order to highlight the major differences in the issues and the approaches for dealing with them.
Table 1 Summary of the Themes in the Strategy for Edmonton's Districts Component 1)
Neighbourhoods
Inner City Growth and revitalization should
Suburbs
be assisted and encouraged to attract people and economic activity rather than relying on restricting suburban growth.
Existing residential and employment growth should be accommodated, particularly in the rapidly growing west and southwest areas of the City.
There is a need to arrest and
Problems related to unrealized
reverse some negative trends in the populations, new patterns of physical environment, housing, employment, inadvertent infrastructure and community transportation impacts and market
image, and thus in population. Finally, a strong Downtown and core area housing component is required to support retail opportunities and a vital downtown.
shifts need to be addressed.
New planning approaches to suburban development and design are required to avoid past problems and to respond to increasing market demands for both higher urban quality and more ef&cient provision ofcity services.
MAP 1
AN OVERALL STRATEGY FOR EDMONTON'S DISTRICTS
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1
INNER CITY
I SUBURBS Cincludes rural and undeveloped areas]
Table 1 Summary of the Themes in the Strategy for Edmonton's Districts (continued)
Component 2)
Employment Areas
Inner City Over 20 percent of the City's workforce is employed in the Downtown. Employment functions should be reinforced through ofllce concentration and the development of specialized commercial, institutional and other uses. Retail
Suburbs Suburban industrial and
commercial growth has occurred in
a somewhat unanticipated manner.
West Edmonton Mall, the emerging development ofmegastripsalong transportation corridors, a large
su^lus ofindustrial landandthe
activity should be reinforced by the stimulation of a complementary housing component. Employment areas in transition (e.g., Downtown
strategies for accommodating
railway lands and associated
structural changes to the urban
industrial areas) and the
form and economic base.
shiA from manufacturing to trade and service uses require new planning and employment
revitalization of employment areas (e.g., deteriorating commercial strips) must be addressed. 3)
Rural and
Undeveloped Areas
Undeveloped portions of the River Large areas of prime agricultural Valley and ravine system should be land exist in the northeast and irotected from urban development. south areas of the City. These
Completion of linkages within and extensions of the Capital City Recreation Park (CCRP) should
areas should be protected against premature, scattered urban development.
also be undertaken to facilitate
environmental protection and public enjoyment of the resource.
Suburban growth should be accommodated in an efHcient, environmentally sensitive manner
that does not wastefully consume, or negatively affect natural resource and environmentally sensitive areas. The development of interim uses should not prejudice long term urbanization of these areas.
The CCRP should be extended from
the inner city to the northeast, southwest and west portions of the River Valley and ravine system in order to enhance the
environmental protection and public enjoyment of these features.
Table 1 Summary fo the Themes in the Strategy for Edmonton's Districts (continued)
Component 4)
Inner City
Suburbs
Transportation
Traflic patterns and flows have
Facilities and
followed major urban growth in the the 1982 annexation of new areas Downtown and the suburbs. This to the City, has encouraged has placed a heavy burden on the transportation priorities directed inner city neighbourhoods to towards the automobile. accommodate transportation Completionof suburban arterials, facilities and carry traflic. This, in construction of the proposed Outer turn, has increased demands for Ring Road,extension of major auto-restraint, higher transit freeways, and west end priorities, greater traffic and transportation facility parking management, and a better improvements represent some inderstandingofthe relationship major roadway investments. The between transportation and land impact of major transportation uses. The objective must be a corridors, especially couplet balanced transportation system systems, on employment areas setween the suburbs and the (e.g., megastrips) will require new Downtown which respects >lanning approaches. Finally, community and mitigates there must be considerable environmental impacts, and an attention paid to mitigating ntegrated system of community and environmental transportation, land use and impacts and to achieving high
Impacts
services planning.
Suburban growth, augmented by
standards of urban design, landscaping and aesthetics in the suburbs.
A. NEIGHBOURHOODS
The inner city and the suburban neighbourhoods in the City of Edmonton present
different challenges. Together they provide for a diverse range of housing needs, tenure and lifestyles.
The inner city neighbourhoods, including the older and mature suburban neighbourhoods, are experiencing slow growth and, in some cases, decline in both
population andbuilding conditions. There is a need toarrest and reverse some
localized negative tren^ inthe physical environment, housing, infrastructure and
community miage and thus, population. The emphasis of rejuvenation efforts must
beon the preservation ofstable residential areas followed byinnovative inHll and
family-oriented development and redevelopment on vacant and underutilized lands. The need for a "core area initiative" to upgrade the social and physical environment underscores the primary strategy: to encourage and stimulate growth in the inner city rather than to regula late and restrict new suburban development. The suburban neighbourhoods are experiencing the majority of new residential growth, predominantly single detached housing in the west and southwest areas of the City. There is a need to complete existing neighbourhoods and to provide the attendant community facilities and services. Nevertheless, unbalanced growth, smaller-than-planned for populations and changed economic circumstances have distorted and prolonged the development of school and park sites, town centres, and
other public amenities, facilities and services. Finally, new approaches to the planning anddevelopment ofsuburbs are needed to avoid pastproblems and to respond toincreasing marketdemands for both higher urbanquality andmore
efficient provision of city services. Area of Concern/Approaches
1.
Inner City Neighbourhoods
improving the physical environment to develop a more positive image of older neighbourhoods
identifying stable residential areas for preservation, rehabilitation of the
housing stock, public improvements and protection from negative land use, transportation and other impacts (forexample, traffic, school
closures)
developingin older neighbourhoods innovative, well-designed low and medium density infill housing, sensitive to location and design elements, as a viable alternative to traditional redevelopment
limiting high density residential develoi)ment to a few sites, preferably
around existing concentrations, near major commercial centres and transit and LRT stations, on major underutilized or vacant lands near the City core, and other sites where amenities and open space are conducive to this form of redevelopment selectively redeveloping of obsolete low rise apartment and row housing to medium density residential forms provision by the private development industry of amenities and a mix of
housing within apartmentdevelopment; promotingthe historical and cultural identity ofsome neighbourhoods;
reinforcing existing urban services and community facilities (e.g., schools, parks, protection services) as a vital component of the community fabric
undertaking a core area initiative to upgrade the social and physical environment through: i) coordination of existing public improvement, social service and housing programs ii) water, sewer and roadway infrastructure replacement iii) neighbourhood beautiflcation programs, e.g., streetscape, landscaping, removal of eyesores, etc. iv) funds for social and co-op housing and local employment (e.g., incubator industries), and
v)
developing demonstration projects and stimulating new housing in and near tne Downtown.
2.
SuburbansNeighbourhoods and New Suburban Development
completing unfinished neighbourhoods and reviewing possible changes to the following: i) the future of undeveloped municipal reserve sites ii) the future of undeveloped or incomplete town centre and district campus sites
iii) the mture ofvacantmultiple family and community housing sites iv)
the extension and development of pedestrian, bikeway and linear recreational opportunities, and
v)
the location, intensity,amountand stagingofmedium and higher residential densities required to sustain an appropriate level of community facilities and services
. • reevaluating suburban neighbourhood design to compensate for less-
than-prqjected populations anddensities in order tobe able todeliver city,
community and other facilities and services in a more cost effective and efficient manner
preparing an urban design manual which addresses urban design, landscaping and streetscape standards and other community and environmental issues
generally recognizing that new urban development should occur first within the Restricted Development Area boundary, unless otherwise approved, beforedevelopment is encouraged beyond this boundary. B. EMPLOYMENT AREAS
The physical growth of a city is linked intrinsically to its economic circumstances.
Edmonton serves the role of Alberta's capital city and is the service centre for a large regional hinterland. Edmonton's own economicgrowth has fluctuated widely in
response tothe exploitation ofAlberta's natural resources and ^e vagaries of
resource markets. Responding to such economic matters from a planning perspective is done largely through an examination of physical and structural
changes to employment areas - new patterns and forms, transition, revitalization and me Downtown - as well as an initial consideration of an employment strategy. government
simply making industrial land available for development.
New patterns and forms of employment areas are either now emerging or will likely emerge, often as a result of major transportation changes. New land use policiesand standards are required for megastrips, gateway entrances, development nodes around major intersections of the Outer Ring Road, and major urban service and institutional uses.
Employment areas In transition suffer from underutilization, increasing obsolescence and long term uncertainty. For example, better industrial sites are now available in suburban areas than in the inner city. Other areas in transition
include the sites of various major rail and air transportation facilities, some older commercial areas, and underdeveloped town centre sites. Planning for transition involves not only identifying interim and long term land uses but also the means to implement change. Revitalization of employment areas focuses on deteriorating commercial strips, shopping centres and minor commercial areas. Revitalization should involve many different components, including land use changes, building improvements, the
resolutionofparking and traffic problems, mitigation ofimpactson adjacent
residential areas, ^delines for limited commercial expansion andnew marketing strategies. Revitalization should also involve a cooperative and partnership approach between the City and local business through business revitalization zones
If the Downtown is to remain strong and viable, it must continue to be the
location ofchoice for large businesses, government, primary office space, culture, entert^nment andspecial commercial uses. The promotion ofmajor new housing initiatives in the warehouse district andon adjacent vacantrailway lands is
necessary tosupportemplo^ent functions and promote a vigorous downtown. This
would also contribute to a high level ofactivity beyond normal working and business
hours. A reconcentration ofprimary office spacecan occurbut it should be
encouraged tolocate in dense forms around existing concentrations. The City should encourage a healthy mixofemployment and residential functions and activities; promotepetter physical andenvironmental integration with surrounding residential communities; and to ensure a high standard ofcivic, architectural and urban design quality in the City's core area.
Area of Concern/Approaches 1.
Employment Strategy
diversifyingthe City's economic base assisted by the programs ofthe three levels of government
reviewing and coordinating the operational plans of government and
major institutions
developing an industrial strate^ which includes the following: i)
facihtating the growing shift from manufacturing and primary industry employnaent to trade and services employment through
amendments in City policies, Plans and Bylaws, including the City's obsolete Industrial Outline Plans
ii) iii) iv)
promoting business park development and marketing stratemes oriented to attracting new, labour-intensive, high growth industries targeting key locations for heavy industry and other uses which require special rail, air or highway access changes to current City practices involving the acquisition and servicing of land for industrial development including the possible conversion of surplus unserviced industrial lands to alternative uses, and
v)
locational, landscaping and development criteria for commercial uses in industrial areas.
2.
New Patterns and Forms of Employment Development
developing new land use policies and development standards for: i) megastrips, considering the dynamic interaction between roadway ii) iii) iv)
systems and the megastrips gateway entrances, emphasizing a high standard of urban design, mndscaping and access commercial and other major non-residential development which will be attracted to major intersections of the Outer Ring Road major urban service and institutional uses, some of which have developed beyond an original neighbourhood focus or are now negatively impacting an adjacent residential area.
3.
Employment Areas in Transition
developing measures to help accelerate, where possible, the abandonment and relocation of obsolete rail trackage in the Downtown and Strathcona Yards
reviewing older inner city industrial areas to; i) determine which areas are in transition and what mechanisms are available to facilitate this transition
ii) determine appropriate interim and long term future land uses, and iii) determine the best means ofintegrating City policies, programsand investments with future land uses
preparing redevelopment guidelines for oldercommercial areas,
including shopping centres and smaller neighbourhood centres reassessing and redefining existing and planned town centre sites in the
following manner; i) ii)
revising expectations for future LRT extensions downsizing community and/or commercial components because of smaller than anticipated populations and the develoi)ment of intervening and competing commercial and community facility opportunities
iii)
retaining the Mill Woods Town Centre site, as originally proposed, if the commercial and institutional components proceed as planned, and
iv)
revising the town centre concept to accelerate development, to take greater locational advantage of existing arterial roadways; and to s to suburban neighbourhood design
developing a process to review and plan forthe possible relocation of services from the Edmonton Municipal Airport. 4.
Revitalization of Employment Areas
developing a program of business and physical revitalization for older commercial strips, shopping centres and minor commercial areas, involving the following: i) business community involvement in, and funding of, promotional, ii)
organizational and physical improvements in their area (e.g., through business revitalization zones) comprehensive solutions to parking, aesthetic, environmental and
iii)
other problems appropriate land use changes and, where necessary, provide for
expansion of commercial development while minimizing possible
iv)
conflicts with adjacentresidential areas, and
the promotion of coordinated marketing strategies and special
•vents
developing a program of civic beautiflcation, (e.g., signage, landscaping, tree planting, concealment or burial of utility services, screening of parking and loading facilities) for major industrial and commercial areas with frontage on major City roadways. 5.
A Strong. Viable Downtown
encouraging a strong Downtown
encouraging a core area housing con^onenttosupport retail opportunities and the vitality of the Downtown
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using the concentration ofoffice space within the civic and provincial government centres to engender civic, urban design and other benefits inner
Edmonton) approach establishing exemplary standards in: public and private architecture i)
ii) streetscape, pedestrian and other public spaces iii) special promotions and opportunities for arts, entertainment, iv)
recreation and cultural activities, and specialized commercial and retail activities
inte^ating pedestrianand transit linkages with activity centres, parking and mtermodal facilities, and
enhancing the quality, distribution and accessibility of parking. C. RURAL AND UNDEVELOPED AREAS
Although recent rates of urban growth have slowed, most rural and underdeveloped areas within Edmonton's current city limits will ultimately be developed for urban purposes. Nevertheless, these areas, especially prime agricultural lands, should be protected against premature, scattered urban development.
Urban development should be accommodated in an efficiently staged and environmentally sensitive manner that does not wastefully consume high quality farmland and other natural resource areas.
Natural environmental features and sensitive areas such as the River Valley, ravines, woodlands, wetlands and wildlife habitats should also be protected from the negative impacts of urban expansion. Area of Concern/Approaches 1.
Agricultural Land Management
implementing the City's Agricultural Land Management Program, with a particular emphasis on the northeast and south areas of the City 2.
Urban Development
limitingcounty residential andmobile home developments toinfillingof approved subdivisions
staring development - first priority should be given to development witniftthe Restricted Development Area (RDA); last priority should be riven to lands outside the RDA
)ufferingoil and gas extraction activities/facilitiesfrom encroaching urban development
buffering residential areas from adjacent incompatibleland uses (e.g., industrial storage) restricting the expansion of major institutional sites in the Northeast District
recognizing the development potential of sites around major intersections of the Outer Ring Road
3.
Environmental Protection and Public Recreation
extending the Capital City Recreation Park system to the City's boundaries
rehabilitating of watercourses, ravines and wooded areas which have been damaged by urban development and natural resource extraction
establishinga ^eater commitment to environmentalprotection and rehabilitation in the planning process through contro lingail urbanand urbanizing activities so as to minimize environmenta impacts, hazards
and nuisances, and to promote the proper rehabilitation o^resource extraction sites.
D. TRANSPORTATION FACILITIES AND IMPACTS
Recent growth patterns of neighbourhoods and employment areas have had major effects on the demand for and distribution of transportation services and facilities. Long term, investment patterns in the transportation system will shift from
new capital facilities to maintenance and upgrading ofexistinp^ facilities and
services. Over the short term (next 5 years) more transportation facilities will be built in the west and southwest to address the employment and population growth in these areas.
Community and environmental impacts caused by transportation facilities have often been insufficiently addressed. An approach which is more sensitive to environment and community protection is warranted. Such an approach might remove negative impacts, but result in increased trip times to and within the inner City. Other measures could reduce the impact of major transportation facilities through urban design and landscapingmeasures. These measures should be developed in close consultation with affected communities.
Integrated land use, transportation and utility servicing planning needs better coordination to provide the framework for a high quality integrated living environment in Edmonton.
Areas of Concern/Approaches 1.
Transportation System - Long Term
fostering a balanced s:^stem ofprivate andpublic transportation modes i.e., recognize emphasis on private vehicle use in the suDurbs and encourage auto restraint and the use of public transit/LRT in the inner city
increased reliance on public transit in the inner city completing an LRT network first to the south, then to the west and then tiie norUi sectors of the City
improving and extending major roadwayfacilities (e.g., the Outer Ring
Road and various freeway extensions) maintaining existing roadways and capital facilities (e.g., bridges)
providing: i)
ii)
"park-n-ride" facilities to increase transit use
adequately located and designed parking facilities to assist commercial area and Downtown revitalization, and
iii) high design standards for temporary and long term parking facilities
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relocating some facilities (e.g., railways and possibly air services) 2.
Transportation System • Short Term (Five Year Plans)
completing major transportation and service infrastructure for new suburban residential and commercial development, particularly in,west and southwest Edmonton
3.
Community and Environmental Impacts
implementing measures ofauto-restraint, traffic management and public transit priority (all with loweracceptable servicelevelsforvehicular traffic) in the inner city
deleting the concept of a Downtown distribution loop implementing noise attenuation measures
providing increasedlandscaping alongarterial roadways
introducing innovative streetscape design and layout in new suburban developments
expanding pedestrian and bicyclesystems using linear rights-of-way and other opportunities 4.
Land Use. Transportation and Utility Services Planning
developing city entranceways to high transportation, land use and environment quality standards promoting a strong, viable Downtown (for instance, by burying utility services and developing a transit loop)
promoting an integratedland use/transportation approach to the
development of megastrips, transportation corridors, couplet systems, LRT extensions and new major roadway improvements implementing a limited access strategy for land uses along major roadways
coordinating municipal infrastructure rehabilitation in the inner city and coordinating new development in suburban areas.
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