Edmonton (Alta.) - 1996-1999 - DP5_A made in Edmonton approach (1998-08-17)

SD LIBRARY

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Made in Edmon on app oach Edmonton. Planning

Choosing Directions for Planning and Developing Edmonton in the Future

Plenn:ng end ri'valot:irrient

LIRRAAY

The City of Edmonton

A MADE IN EDMONTON II APPROACH DISCUSSION PAPER #5

Ecliti'Cionton 313.1a .E3 E373 19961999e

PLANNING AND DEVELOPMENT

Planning and Policy Services Branch August 17, 1998

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Table of Contents 1. INTRODUCTION

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2. CONCLUSION

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,--APPENDIX 1 Planning Issues and Performance Based Planning

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Figure 1 Key Components of a "Made in Edmonton" Approach

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INTRODUCTION

Preparations are underway to launch the "Directions for a New Zoning Bylaw" project to the public. The Communications Plan, currently under preparation by consultants, will assist project planning staff in identifying specific audiences, the appropriate medium for obtaining input and communicating various products, and finally, the messages being communicated by this projecfT This paper is intended to clarify those messages which project planning staff wish to convey initially, in the first round of consultations.

The message for this project has been further refined since its introduction in the initial report to Council. The original message encompassed a package based on a performance based zoning model and a conceptual and descriptive framework for a new regulatory system. This package would provide the widest basis for discussing what is wrong with the current Land Use Bylaw and regulatory system and for exploring the range of potential solutions. This so-called "full blown" approach has been tempered by recent research into performance based zoning as well as by the normal evolution of any project and its ongoing demands to establish realistic and achievable parameters. This new and refined message is entitled the "Made in Edmonton" approach.

The "Made in Edmonton" approach is depicted in Figure I. This approach has evolved from a discussion around performance based planning, its definition, and relevant weighting and importance to the project in comparison to other key project components.

For example, the message for the overall project should reflect the higher priority of creating a service oriented regulatory system. Figure 1 provides a clearer understanding of the relative importance of the different project components.

At the same time, empirical research has narrowed the practical limits of performance based planning. Kevin Harper, in a paper entitled "Alternative Regulatory Approaches: International Experiences with Performance Based Planning" has cautioned against a 100% performance based planning system. In his review of world-wide experience, no municipal jurisdiction has ever implemented such a system. He recommends instead that the scope of performance based planning be limited to a few clearly articulated goals, focused on a few key land uses, and that developers be allowed to choose between a conventional solution and an alternative one. Failure to do so has, in so many cases, resulted in performance based planning becoming cumbersome, time consuming and complex.

The "Made in Edmonton" approach, depicted in Figure 1, identifies three project components. The first component is the service oriented regulatory (planning) system.

Discussion Paper #2 initiates discussion on this new regulatory framework for managing land use, development and occupancy (LUDO) in the City of Edmonton in a manner which is seamless, has a rapid response capability and has the ability to grow and adapt to societal trends. The citizens of Edmonton expect this project outcome, based on the new Municipal Plan's initiative on the development of a "one stop shopping service." Discussion Paper #2 presents a variety of tools for accomplishing these service improvements, including performance based zoning.

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Figure 1 Key Components of a "Made in Edmonton" Approach

Performance Based Planning Enhancements Required Changes to the Zoning Bylaw

Development of a Service Oriented Regulatory System

The second project component is comprised of the changes required to the current Land Use Bylaw irrespective of the selected zoning model. Typically, the range of subjects subsumed under this component are discrete and already well known, having been identified in past research. Discussion Paper #1, completed in 1996 is a good starting point. Another source is the Council report and its attachment entitled "Directions for a New Zoning Bylaw." Subjects include, for example, parking and landscaping standards, DC5s (Site Specific Development Control Districts) and the annexed lands Land Use Bylaws. It is time to modernize these aspects of the City's Land Use (Zoning) Bylaw.

Changes may involve a combination of conventional and performance based planning measures. The latter may be considered in conjunction with the third project component or where performance based measures are better equipped to deal with the impacts of development, particularly off-site impacts.

The third project component deals with enhancements to the current planning system which can be brought about by performance based planning. Adopting Kevin Harper's earlier advice on this matter, Appendix 1 outlines seven possible planning issues for public discussion. Each planning issue describes a primary goal associated with a key land use and outlines the issue in its broad form. These planning issues have been drawn from Edmonton's new Municipal Development Plan and other relevant local experience.

Further public discussion will help to refine those areas in the current planning system which would benefit from a performance based planning approach.

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CONCLUSION

This paper presents the new and refined message, entitled the "Made in Edmonton" approach which will guide the communication strategy for the first round of consultation.

The previous (full blown) approach was premised on a more theoretical and pure zoning model based on a performance based planning system. Empirical research, primarily that of Kevin Harper's paper on alternative regulatory systems around the world, and the need to establish more realistic and achievable project parameters has resulted in further refinements to the basic approach which will drive the communication and the overall project strategy. Figure 1 depicts the key components of this "Made in Edmonton" approach as well as the relative importance of each of the components.

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APPENDIX 1

Planning Issues and Performance Based Planning

The following seven planning issues combine planning goals and key land uses, and outline the issue(s) which could perhaps be served by a performance based planning system. The primary advantages of a performance based system are its flexibility with respect to land use and design as well as a more rational approach to land use control, based on quantitative requirements rather than arbitrary regulation. Performance based measures may find a home not only in a new zoning bylaw but also in the other aspects of plan making and the regulatory system.

I. Enhancing the Compatibility of Low Density Residential Infill in Mature Neighbourhoods- Edmonton is experiencing a renewal within its older neighbourhoods. Aging homes are being renovated or replaced by new infill houses.

This reinvestment is vital to the future health of these neighbourhoods but it comes with some problems. In many cases, this rise in redevelopment activity increases conflicts between property owners as the built-form of these new homes often clashes with existing houses and streetscapes. The current planning response is to create a number of "overlays" for specific neighbourhoods where immediate conflicts have arisen. City Council would like to see a common solution to this problem.

2. Reinforcing Older Commercial Strips- Older commercial strips suffer from physical constraints such as the lack of convenient parking and market constraints such as competition from regional commercial areas. Even successful revitalization efforts bring problems, specifically the intensification of uses within existing buildings and the spillover impacts (noise, traffic, parking, encroachment into residential areas) into adjacent residential communities. In addition, there is insufficient recognition in the City's Land Use Bylaw of the different urban forms of commercial development between inner city and suburban areas. For example, maintaining a street-oriented, continuous building frontage is an important planning objective for much of the commercial development in the inner city. Finally, older commercial strips are becoming the preferred locations for land uses which the local communities consider to be a "nuisance" or undesirable such as pawnshops and peep shows. A variety of new measures are required to deal with these issues, including a review of zoning and parking standards, new parking strategies, better public notification, aesthetic improvements and business revitalization plans.

3. Improving the Land Use and Design Compatibility of Major Commercial Nodes and Corridors- The scale and location of commercial developments has been changing.

Their size is growing and they are locating along major roadways and in industrial areas. They are very often car-oriented and there is pressure to convert residential or industrial lands for new commercial development. Current land use policies, urban design guidelines and regulations do not adequately deal with the impacts on adjacent communities.

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4. Managing Industrial Growth and Transition- Industrial growth and transition in Edmonton is making many of the traditional planning approaches intended to accommodate it obsolete or archaic. This is particularly true of the practice of separating uses into light, medium and heavy industrial categories. New service and trade uses, for example, are locating in "industrial" areas as Edmonton moves towards a "service society." A more relevant planning approach would be to replace the present industrial categories and their associated location requirements with a new system which focuses on the impact of development and land use compatibility. This view is supported by recent work on risk management by the private sector and civic officials.

5. Conserving Agricultural Areas- The majority of lands within Edmonton are within the highest capability classes for agricultural production, with areas in the northeast and southwest particularly suited for market gardening and grain growing.. Eventually some of this land will be needed for urban development. Otherwise, growth would be limited to currently approved plan areas. There is a need to balance the retention of agricultural land with urban requirements. The Municipal Development Plan identifies such agricultural areas which need to be retained until needed for urban development.

The Plan also recommends the pursuit of a strategy to prevent the premature fragmentation of agricultural land prior to the extension of cost-effective urban development.

6. Conserving Natural Sites in Edmonton's Table Lands- A 1993 study determined that there were some 55 environmentally sensitive sites and another 27 significant natural areas in Edmonton's table lands. In addition, there are over 1,000 discrete natural sites.

The City policy is to encourage the conservation and integration of as many of these natural sites as possible into Edmonton's future urban environment as are sustainable and feasible. Since there is no legal obligation on the part of the property owner to conserve these natural sites, the current policy and conservation guidelines are voluntary.

7. Managing Suburban Growth for Sustainable Development- Edmonton's approved plans have enough land to accommodate suburban development for the next 25 years.

The normal range of services and infrastructure has or will be delayed where there is an insufficient population base. Further suburban growth which is orderly, serviced and cost-effective requires the development and implementation of sustainable development principles. This includes new suburban neighbourhood design, more efficient use of land and infrastructure, varying facilities and services in sustainable versus underdeveloped neighbourhoods, and adapting infrastructure and services for the life-cycle effect of neighbourhood growth.

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