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Edmonton
General Municipal Plan What is the GMP?
How the GMP Is Used
1991 Focus
Edmonton's General Municipal Plan (GMP) provides a vision for Edmonton's future and a strategy to achieve that future. It focuses on the most important issues for the city's growth and development. City Council adopted the GMP as Bylaw 9076 in November 1990. Its objectives and policies will help shape the future of Edmonton over the next five to ten years.
The civic corporation and the private sector achieve the GMP objectives through a range of activities. Day-to-day land use planning activities produce various area structure plans, area redevelopment plans, and topical studies which support the GMP goal. The success of GMP policies relies on a coordinated corporate approach, departments working together on common goals.
In 1991, the focus was on Inner city initiatives, the environment and suburban issues. The corporate approach recognized that social issues often impact the community. These social issues have been linked with infrastructure and housing Improvements, particularly in inner city neighbourhoods. The Parks and Recreation Department developed the "Ribbon of Green" Concept Plan for the North Saskatchewan River Valley and Ravine System and introduced more natural planning for open spaces. In the suburbs, • studies addressed the servicing constraints in the northeast and appropriate housing mix in new neighbourhoods.
About this Report This report describes the various initiatives undertaken in 1991 which achieve the objectives and policies of the GM?. Grouped by strategic Issue areas, the initiatives describe how policies in the 1990 GMP were translated to specific activities in 1991. This linking of policy to actions is necessary to maintain the vision as set out in the GMP. The report ends with a look forward to 1992.
THE ciry o'
mont
! a ! I PLANNING AND
Aia LI DEVELOPMENT
January 1992
.
Inner City Strategy
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Revitalizing t trier City The planning approach for the inner city emphasizes the renewal of special needs areas, the enhancement of inner city communities and the coordination of civic actions. Selected inner city neighbourhoods require priority attention because of their socio-economic and physical problems. The GMP proposes a strategy which involves concerted, corporate commitment.
The Planning and Development Department is preparing a strategy for planning activity in the inner city. The strategy will recognize that the Department provides land use planning services to the entire City, as well as issueoriented planning services, including special studies. These special studies tend to concentrate on planning issues in the inner city. The strategy also focuses on the needs of inner city neighbourhoods by providing planning services such as neighbourhood improvement programs, community revitalization and business revitalization. These programs assume a corporate focus that recognizes both the physical land use and socio-economic health of inner city neighbourhoods. (Policy 1.A.1). Boyle Street/McCauley Area Redevelopment Plan City Council adopted terms of reference to review the Boyle Street/McCauley Area Redevelopment Plan (ARP) in January 1991. The GMP Identifies Boyle Street and McCauley as special needs neighbourhoods. The ARP review is a priority initiative under the inner city strategy and involves both the Planning and Development and Community and Family Services Departments. The review also includes input from other civic departments, community residents and special interest groups. The Planning and Development Department is working through the Planning Coordinating Committee, which represents the Boyle Street and McCauley neighbourhoods. Community workshops were held in 1991 and more will take place in 1992.
The comprehensive focus will address both socioeconomic and physical neighbourhood concerns.
(Policies 1.A.2, 1.A.3, 1.C.5) Edmonton Joint Planning Committee on Housing Established in 1990, the Edmonton Joint Planning Committee on Housing is a partnership venture which includes the City's Community and Family Services and Planning and Development Departments, provincial departments, Canada Mortgage and Housing Corporation, and affected community agencies. The committee's short term goal of improving housing in the inner city led to a $5.4 million commitment in capital funding and $2.2 million per year in associated operating funding and housing subsidies from Alberta Municipal Affairs. The five funded projects will provide 100 housing units by 1993 for special needs groups. To address the need for subsidized housing in the inner city over the longer term, the committee completed a plan in December, which provides direction as to where, when, for whom and how affordable housing issues should be addressed in Edmonton. The plan, "A Place to Call Home: the Three Year Plan for Housing in Edmonton's Inner City 1992 1994," proposes 200 new subsidized housing units in each of the next three years.
(Policies 1.B.4, 1.B.6) AMPLE initiatives Since the AMPLE (Alberta Municipal Partnership in Local Employment) program began in 1986, Edmonton chose to spend its share of provincial grant money in
Edmonton General Municipal Plan 1991 initiatives nage 2
selected older communities to repair water mains, sewers and road surfaces. Underground infrastructure improvements allow for the coordination of other amenity improvements in the neighbourhood at the same time. Infrastructure renewal under the AMPLE Neighbourhood Program took place in Britannia/Youngstown in 1991. The neighbourhood focus provides for significant public input from community organizations. A 1991 consultant's report completes the planning phase for the next neighbourhoods proposed for infrastructure improvements: Mayfield, High Park and McQueen. AMPLE neighbourhoods already upgraded include Westmount, Inglewood and Oliver. The Transportation, Public Works, Finance and Planning and Development Departments also participate in AMPLE projects. (Policies
1.A.1, 1.A.2,1.A.5, 1.C.1, 1.C.6) Business Revitalization Zones A Business Revit1li72tion Zone (BRZ) allows businesses to tax themselves and use those funds to improve and promote their areas. The Fort Road BRZ and the Avenue of Nations BRZ (97 Street, 101 Street and 107 Avenue) were established in 1991. Planning and Development Department staff will continue to help the BRZs establish solid objectives. BRZs tend to focus on streetscape improvements, coordinated promotions, special events, joint advertising, parking campaigns and programs to deal with specific area concerns. Other Edmonton BRZs Include the Downtown, ICingsway and 124th Street. (Policies 3.D.1, 3.D.2,
3.D.3, 3.D.4, 4.B.2, 5.C.4)
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Managing Suburban PPnwth The planning approach for the suburban areas include managing growth, ensuring adequate neighbourhood services and maintaining a balanced mix and density of housing. The General Municipal Plan allows for market forces, while pursuing the goal of heterogeneous communities and orderly and economic development. The GMP encourages flexibility in designing attractive and functional neighbourhoods.
Housing Mix
Northeast Edmonton Servicing Strategy Servicing constraints have substantially affected the staging of development in Northeast Edmonton. The coordinated efforts of the Planning and Development Department and the Transportation Department resulted in a Northeast Planning Strategy which City Council adopted in April. The strategy examines development constraints and Identifies a planning approach for the timely and orderly completion of existing neighbourhoods. Detailed engineering studies addressing the sanitary and storm systems required to service the northeast will follow in 1992. On completion of these studies, an Implementation strategy will be advanced for Council's consideration. The strategy area includes Clareview, Pilot Sound and the Lake District. (Policies 2.A.1, 2.A.3, 2.A.7, 2.A.8)
The Planning and Development Department's 1991 Report on Housing Mix Proportions in New Residential Developments* identifies the changing mix of different housing types in Edmonton suburbs between 1969 and 1990. Since the early 1980s, suburban residential areas developed with predominantly single family homes despite approved plans which included significant proportions of multiple family housing. In February, Council supported the report's recommendation to evaluate future Area Structure Plans, Neighbourhood Structure Plans and land use redistrictings using the housing mix range of 15% to 35% multiple units and 65% to 85% single family units. This new guideline will support decisions on adequate housing mix in new communities. (Policy 2.C.1)
TerwIllegar Heights Servicing Concept Design Brief
Suburban Neighbourhood Concept The Planning and Develop ment Department is examining changing social, demographic and development trends affecting Edmonton's suburbs. A draft study was prepared in 1991, promoting an information exchange within the Civic Corporation and with the development Industry. The draft study stimulates discussion on the necessary elements of a suburban neighbourhood in the 1990s to improve its function and design. Work on identifying these elements will continue into 1992. (Policies 2.A.7, 2.B.1)
The Terwillegar Heights Servicing Concept Design Brief (SCDB) was initially drafted in 1991. The brief contains all the elements of an Area Structure Plan, as specified in the Planning Act, but represents a departure from the traditional statutory planning process. The SCDB allows the City to provide early input in the design of new areas by stating its requirements for servicing infrastructure and municipal land use requirements. The design brief also recognizes environmental issues and changing social, demographic and development trends. The draft report provides a proactive, forward-planning statement of the civic
Edmonton General Municipal Plan 1991 initiatives IVA OP Z
position regarding major land uses in the Terwillegar Heights area. The Planning and Development Department prepared the draft report with major input from participating civic departments and agencies. In 1992 the Planning and Development Department will present the report to landowners/developers in the study area. Subject to this review, the report will be submitted to City Council for approval. (Policies 2.A.1, 2A.2, 2.B.1, 2.B.3, 2.C.1, 2.C.2, 5A.8)
Rail Lands Redevelopment
ilipporting Business and Employment Areas The planning approach for business and employment areas provides for new types of commercial and industrial land uses to reflect employment growth in the service and trade sectors. Other policy approaches encourage town centres, provide for major commercial corridors, reinforce established commercial strips, promote the renewal of older industrial areas and recognize major activity centres.
The reuse of both CN and CP rail lands on the border of the Downtown supports the redevelopment of older Industrial areas and the recognition of major activity centres. In 1991 construction started on the first commercial area and Grant MacEwan Community College on the site of CN Rail lands. For the CP Rail lands bordering 109 Street, the Planning and Development Department and CP Rail are coordinating efforts to produce a Master Plan and amendments to surrounding Area Redevelopment Plans (ARPs). Like the CN lands ARP, the CP plan will direct the redevelopment of rail lands while considering adjacent neighbourhoods and the importance of these areas in relation to the downtown. The Planning Department is encouraging a strong housing component in the redevelopment plans. (Policies 3.E.1, 3.F.1, 3.F.2) Heavy Industrial Separation Distances GMT policies require adequate separation distances between heavy industry and incompatible land ilses. The issue of heavy industrial separation distances received intense scrutiny at an Alberta Planning Board hearing in 1991 regarding development in the Edmonton-Sherwood Park fringe area. The City undertook significant background work to prepare for the hearing. To address the impacts of heavy industry, the Planning and Development Department is preparing draft Terms of Reference
to establish City guidelines for Environmental Impact Assessments (ElAs) for heavy industry. (Policies 3.A.3, 3.A.4). Major Commercial Corridors In June, City Council adopted an Overlay Schedule (Bylaw 9 i) for the City's four major entrance routes and commercial corridors (137 Avenue/St. Albert Trail, Stony Plain Road/100 Avenue, Fort Road/Manning Freeway and Calgary Trail). The Planning and Development Department prepared the Overlay Schedule, which was incorporated into the Land Use Bylaw. The Overlay Schedule establishes development criteria to ensure that development along these corridors Is visually attractive and addresses pedestrian and traffic safety. (Policies 3.C.1, 3.C.2, 5.B.1) Streetscape Strategy City Council adopted a "Strategy for Planning and Financing Streetscape Improvement Projects" in August. Produced by the Planning and Development Department, the report establishes a means of selecting identified streetscape projects and will be implemented annually as part of the civic budget process. Streetscape improvements enhance older retail strips, particularly in the inner city. 1991 initiatives included improvements along Stony Plain Road and Jasper Avenue. (Policies 31).1, 3.D.2, 3.D.3).
Edmonton General Municipal Plan 1991 initiatives one 4
Clareview Town Centre Council amended the Clareview Town Centre Neighbourhood Area Structure Plan in July. Current iiices on the Clareview Town Centre site include the Twin Ice Arena complex, which opened in October, and the LRT Station. The plan also provides for a campus site for two high schools, a mix of commercial uses and a mix of low, medium and higher density residential development. Development of the Clareview Town Centre is a specific goal in the GM? and is an important part of the successful implementation of the Northeast Servicing Strategy. (Policies 2.A.8, 3.B.1, 3.B.2, 3.B.3) Conversion of Industrial Land Edmonton has a surplus of industrial land which outweighs any foreseeable demand. Proposals have come forward to convert some of this land to residential use. To assess this conversion, the Planning and Development Department prepared a set of criteria which measures the impacts of conversion on both residential and industrial areas. Suitable areas for conversion will be identified in 1992. (Policies 1.B.2, 2.A.7, 3.A.2, 3.A.3, 3.A.4)
Partnerships
Strengthening the Downtown The planning approach for Downtown Edmonton focuses on initiatives which revitalize the downtown, promote housing in the downtown, improve the downtown environment and encourage safe and efficient pedestrian travel. The downtown is the multifunctional centre of Edmonton and its region. Joint public/private partnerships are vital to implement these GMP policies.
Dynamic Downtown partnerships continue to take shape in 1991 with PRIDE (PRogram to Improve Downtown Edmonton) leading the way. The Downtown Business Association (DBA) and the Edmonton Downtown Development Corporation (EDDC), two major partners in PRIDE, continue to promote and market the Downtown. Of particular note, the DBA organized the Santa Clause Parade and promoted other Christmas activities. The EDDC gained funding commitment in 1991 from the Federal Government towards the Old Towne Market re-development project involving the restoration of the historic Goodridge Block. The EDDC also completed a loft housing feasibility study which shows a market for converting historic warehouse buildings to upscale lofts.
(Policies 4.A.6, 4.B.1, 4.B.2)
Downtown Housing Strategy The Planning and Development Department initiated the Downtown Housing Strategy in 1991, completing the Terms of Reference and establishing an Advisory Committee. The strategy will recommend policies and actions to stimulate new residential construction, the renovation of existing housing and the conversion of non-residential properties to residential use. The strategy involves representatives from the housing industry, the business community, property owners, community leaders and public agencies.
(Policies 1.A.4, 4.C.1). Jasper Avenue Beautification Jasper Avenue beautification Improvements from 103 Street to 106 Street were completed in 1991. The project reflects another successful joint public/ private partnership approach to improving the image and perception of the Downtown.
(Policies 4.D.1, 4.D.7).
Edmonton General Municipal Plan 1991 initiatives nage 5
Pedway Network 1991 saw an extension of the Downtown Pedway Network with new linkages between Edmonton Centre and Churchill LRT Station (Churchill Square Pedway) and between the Scotia Place and CityCentre towers. During 1991 the Planning and Development Department also addressed disabled access, security and hours of operation.
(Policies 4.D4, 4.D.5) Major Activity Centres The expansion of two major downtown educational Institutions supports the GMP goal of revitalizing and strengthening the Downtown. Construction of Grant MacEwan College began in 1991 and plans are underway for a major expansion of Alberta College. The Planning and Development Department was involved with detailed design guidelines for both projects.
(Policies 3.F.1, 4.A.2)
Supporting Good Urban Design and Heritage Key GMP objectives include promoting good urban design and beautification, beautifying roadway approaches to the city and downtown and preserving heritage. To create a positive image of Edmonton, the Plan considers the aesthetics and visual impact of growth and redevelopment. The Plan proposes both public and private initiatives to improve the city's image. Preserving heritage buildings and areas is also an important contribution to the city's character.
Heritage Buildings
Special Needs Groups
1991 saw the first examples of the City's award winning Policy to Encourage the Designation and Rehabilitation of Municipal Historic Resources. The Hotel MacDonald, closed since 1983, opened its doors again, rehabilitated to its original 1915 appearance. The Downtown Hudson's Bay Department Store also reopened in 1991 after undergoing rehabilitation. The facades were restored to their original 1939 appearance and new retail stores join the Bay inside. Other 1991 Planning and Development Department initiatives included completion of the Terms of Reference for a city-wide inventory of heritage buildings and detailed evaluations of potential heritage buildings. (Policies 1.A.4, 5.C.1, 5.C.4).
GMP policies require that the physical development of the City consider the needs of disabled persons and other groups with special requirements. The City of Edmonton Advisory Board for Persons with Disabilities assists civic departments in responding to citizen's concerns and in planning effective municipal services for the disabled. The Public Works Department is leading a corporate effort to produce a general accessibility policy for all city facilities. Physical access for disabled persons improved in 1991 through specific retrofits to existing Parks and Recreation facilities, ongoing improvements to I.RT stations and pedways, and by addressing the needs of all citizens in the construction of the new City Hall. (Policies 5.D.1, 5.D.2)
Public Art The City unveiled the first public art pieces acquired under the City's "Percent for Art to Provide and Encourage Art in Public Places" Policy in 1991. The new art is in the Churchill Pedway and Clareview Twin Ice Arena. The City Hall Art Steering Committee identified sites and types of artwork for public spaces in and around City Hall. Open competitions for art commicsions have attracted great response from the Alberta visual arts community. The Planning and Development Department is preparing amendments to the "Percent for Art" Policy to clarify implementation procedures.
(Policy 5A.7)
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Naturalizing Open Spaces In 1991, the Parks and Recreation Department established a pilot project to examine ways in which parks, areas adjacent to roadways and other public outdoor areas can become more natural. Where feasible, ornamental and annual plants are replaced by perennials and more woody plant material. In keeping with the principles of naturalization, only plant species native to the Edmonton area are used. Through this project, numerous areas in the City will become more natural and maintenance costs will be reduced.
(Policies 5.A.3, 5.A.4, 6.C.1)
Natural Areas
Protecting Agriculture and the Natural Environment The planning approach for agriculture and the natural environment includes designating agricultural areas, protecting the natural environment of the North Saskatchewan River Valley and Ravine System, providing recreational and open space opportunities in the River Valley and retaining environmentally sensitive areas.
River Valley Concept Plan and Master Plan
GMP policies support a study of Environmentally Sensitive Areas (ESAs), and specifically, obtaining and retaining ESAs. The Planning and Development Department prepared a draft report, 'Planning for Natural Areas in Edmonton, Policy and Implementation Background Study? The report proposes the classification of natural areas to Identify unique or sensitive natural areas that are worthy of protection. The report proposes the development of a City Policy to protect natural areas. (Policies 2,A.6, 5.A.4, 6.D.1, 6.D.2, 6.D.3)
In 1991, the Parks and Recreation Department developed "Ribbon of Green", a concept plan for the North Saskatchewan River Valley and Ravine System. The concept plan represents a balance between making the valley more accessible for public use and protecting the natural landscape and habitat areas. Following from the Concept Plan, the Department began to develop a Master Plan for river valley development. The plan proposes the extension of the Capital City Recreation Park from its present eastern and western limits through Terwillegar Park and Hermitage Park. Emphasis in the Master Plan is on development of trails, pedestrian bridges and basic amenities for users. A resource analysis approach determines the sensitivity of river valley lands to rectr4don use and identifies development locations which will have the least environmental impact. Park construction should begin in 1992 and continue through 1998. (Policies 6.B.1, 6.C.1, 6.C.2).
Edmonton General Municipal Plan 1991 initiatives page 7
Alberta Environmental Protection and Enhancement Act The Public Works Department, with the Office of the City Solicitor and other affected City Departments, coordinated a comprehensive review of the proposed Alberta Environmental Protection and Enhancement Act - Bill 53. City Council approved the City's submission in December. The submission focused on those aspects of the regulations and legislation which directly affect the municipality. The City is a stakeholder in the environmental process, both as a possible administrator of the regulations and as an applicant for approval of various municipal undertakings. Alberta Environment will reintroduce the Act during the spring 1992 session of the Legislature.
One of the key directives of
Land Development Scenario
Providing Efficient Transportation and Utility Systems The Plan recognizes the need for an efficient, safe transportation system which supports the city's socio-economic and land use development needs.
the GMP is to protect com-
GMP policies encourage contiguous development and the orderly and efficient extension of municipal services in newly developing areas. The Planning and Development Department collected data from the Transportation Department, Public Works, Edmonton Power and Ed Tel, to produce the "1991 to 1996 Land Development Scenario" report. The report forecasts land servicing activity and associated infrastructure requirements. It serves as a support tool for coordinating new municipal capital projects in suburban areas through the Capital Priority Plan.
(Policies 2.A.1, 2.A.2, 2.A.3, 2.A.4, 2.B.1, 7.A.9).
Transportation and Traffic initiatives In 1991 the City continued to shift the emphasis from construction of major new projects to increased emphasis on roadway rehabilitation. Major infrastructure rehabilitation efforts in 1991 included: •Stony Plain Road (124 Street to 142 Street, 149 Street to 156 Street); •118 Avenue (73 Street to 78 Street, 121 Street to Groat Road); •103 Street (80 Avenue to Saskatchewan Drive); •104 Street (76 Avenue to 80 Avenue); •66 Street (Yellowhead Trail to Fort Road).
munities from the impacts of traffic. The Transportation Department is working with more than 20 communities to address neighbourhood traffic issues. The most significant initiatives of 1991 were: •McCauley Traffic Plan; •Inglewood Parking Program; •McKernan shortcutting reduction and bike lane on 112 Street. (Policies 1.C.1, 7.A.2)
Bikepaths GMP policies encourage the continued development and maintenance of pedestrian and bicycle facilities. In 1991, the Transportation Department advanced the City of Edmonton Comprehensive Bicycling Plan to the final draft stage. The policy was developed with input from the Cyclists Education Committee, City departments and other government agencies. The policy encourages and promotes the safe use of bicycles for utilitarian and recreational purposes. Major 1991 initiatives included the widening of 109 Street to accommodate a shared transit and bike lane, and new contra-flow bike lanes on two one-way streets: 112 Street and 88 Avenue. In February the City introduced the Bicycles-on-LRT project for a one year trial. The project permits cyclists to board transit trains with their bicycles during off-peak hours. (Policy 7.A.7)
Edmonton General Municipal Plan 1991 initiatives page 8
South LRT Extension In 1991, construction progressed on the University LRT Station, the twin tunnels on the south river bank, the Dudley B. Menzies Bridge and the tunnels between the bridge and Grandin Station. The University Station is scheduled to be opened in 1992 and LRT will reach Edmonton's south side. (Policies 7.A.11, 7.A.4,
7.A.5)
LOOKING FORWARD TO 1992
The agenda for 1992 will continue many of the priorities outlined in this summary report, the inner city, the environment and suburban issues, but in the context of a constrained budget. For example, recent provincial funding cutbacks in 1992 and beyond will impact inner city neighbourhood improvement Initiatives when AMPLE funds are redirected to other civic Initiatives. While inner city funding through AMPLE may be gone in 1992, the commitment to the process in the Inner city remains. Funding for the neighbourhood Improvement program will be sought through the Corporate Priority Plan. The challenge lies in maintaining the focus on the inner city as the City's development priority despite limited resources.
The Administration will continue to examine development issues and emerging trends in the suburbs. These Initiatives are forwardlooking. They strive to make the development process more efficient and effective and improve the function and design of Edmonton's neighbourhoods. The scope of the "Land Development Scenario" will be expanded to include a priorization of the City's investment in infrastructure to serve growth areas. Finally, the successful achievement of GMP policies will continue to rely on a coordinated corporate approach. This document provides many examples of civic departments working collectively on priority initiatives.
The environmental agenda continues to grow and maintain high public interest. Changes in Provincial legislation, and issues such as the need for a new regional landfill and protection of the North Saskatchewan River as a drinking water source, keep environmental issues high on the public agenda. Work will continue on the study of environmentally sensitive areas and the extension of the Capital City Recreation Park In the civic context, these Initiatives may mean changes In day-to-day activities and in the development process.
Edmonton General Municipal Plan 1991 initiatives page 9
For further Information contact: Strategic Planning Branch Planning and Development Department (403) 428-3539