Edmonton (Alta.) - 1987 - An overall strategy for Edmonton's districts (1987-06-02)

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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