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Directions for a New Zoning Bylaw
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The City of Edmonton
PLAN EDMONTON'S Al INFLUENCE UI
DISCUSSION PAPER #6
egiOnton 313.1a .E3 E373 19961999f
PLANNING AND DEVELOPMENT
Planning and Policy Services Branch September 2, 1998
TABLE OF CONTENTS INTRODUCTION PLAN EDMONTON'S PHYSICAL GROWTH STRATEGY PLAN EDMONTON'S LAND DEVELOPMENT CONCEPT MAP 1 PLAN EDMONTON'S ECONOMIC ACTIVITY CENTRES AND HEAVY INDUSTRIAL AREAS MAP 2 PLAN EDMONTON'S PRIORITIES & STRATEGIES FOR PLANNED GROWTH LAND DEVELOPMENT PHILOSOPHY DOWNTOWN DEVELOPMENT UTILIZATION OF EXISTING INFRASTRUCTURE ECONOMIC ACTIVITY CENTRES WITHIN THE CITY REINVESTMENT IN MATURE NEIGHBOURHOODS PRESERVATION AND ENHANCEMENT OF THE NATURAL ENVIRONMENT AND OPENSPACES MANAGING SUBURBAN GROWTH POPULATION GROWTH MUNICIPAL RESERVES SOUR GAS FACILITIES
Directions for a New Zoning Bylaw: Plan Edmonton's Influence
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Introduction Plan Edmonton is the City of Edmonton's Municipal Development Plan, signed and passed on August 31, 1998. It will guide Edmonton's growth and development into the 21st century. Plan Edmonton is a strategic plan that provides direction to the development and implementation of more specific, detailed plans, policies, programs and activities by all City departments and agencies over a ten year period. This includes providing direction to the preparation of a new Land Use or Zoning Bylaw for the City of Edmonton. As Edmonton's primary planning document, Plan Edmonton addresses five inter-related municipal government responsibility areas identified by City Council as essential to supporting a high quality of life for Edmontonians. The five municipal responsibility areas are Planned Growth; Economic Development; Services to People; Infrastructure Development and Maintenance; and Leadership and Regional Cooperation. Of these responsibility areas, Planned Growth provides the most direction for the new Zoning Bylaw. Extracts from the Planned Growth section of Plan Edmonton are included in this document. Possible implications for the new Zoning Bylaw are suggested in the column adjoining Plan Edmonton's strategies. These broad suggestions are initial thoughts on how Plan Edmonton's strategies will influence and guide the preparation of a new Zoning Bylaw.
Extracts from Plan Edmonton other than the Planned Growth section have not been included in this document. While there are other strategies in Plan Edmonton that will have influence on the new Zoning Bylaw, their implications have already been addressed, in a broad manner, through the Planned Growth extracts and notations.
Directions for a New Zoning Bylaw: Plan Edmonton's Influence
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Plan Edmonton's Physical Growth Strategy
Our Physical Growth Strategy Edmonton is poised for a decade and more of economic and physical growth. By the year 2020, Edmonton will be home to between 800,000 and 900,000 people. Our generalized land development concept is shown on Map 1.
Ensure consistency between zoning map and concept map.
Our physical growth strategy addresses the challenge of accommodating growth and financing new infrastructure and services in developing suburban areas while maintaining the quality and viability of existing developed areas. We will make the most of what we have already built. Working with citizens and community and business organizations, we will sustain our mature residential neighbourhoods and business areas. We will encourage rehabilitation and renewal through re-investment in public infrastructure and the application of land use plans and regulations that accommodate sensitive redevelopment
Mechanisms to ensure sensitive redevelopment — performance based zoning approach with a key objective to ensure compatibility with existing development.
We will optimize the use of public infrastructure by promoting infill development in existing neighbourhoods and business areas and accommodating higher density land uses along transportation corridors.
Provide for infill development and higher densities along transportation routes through performance based zoning techniques.
We will promote investment in commercial and residential redevelopment in the Downtown and promote the Downtown as the focal point of our City. We will support economic activity in our other existing commercial and industrial areas by continuing to provide needed services and infrastructure. We will accommodate changes in business operations that may be required to meet changing business conditions. We will promote the development of the existing and potential economic activity centres where locational advantages or existing facilities provide special opportunities for economic development in the knowledge-based economy of the twentyfirst century. Designated economic activity centres are shown on Map 2.
As much as possible through zoning, ensure that suitable areas of land are designated and developed as "economic activity centres".
To facilitate long-term planning, we have designated enough residential, commercial and industrial land to accommodate projected development in each sector of the city for a minimum of thirty years. The staging of development will be determined by our ability to provide cost-effective municipal infrastructure and services. Our agricultural areas will be
Protect agricultural land from fragmentation until needed for urban development using techniques such as density provisions, minimum lot sizes, and so on.
Directions for a New Zoning Bylaw: Plan Edmonton's Influence
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Plan Edmonton's Physical Growth Strategy
protected from premature fragmentation until they are needed for urban development. We will manage the development of suburban areas to control the life-cycle costs of the public infrastructure and services that our citizens demand. We will encourage the efficient and cost-effective use of land, infrastructure and services by promoting compact and contiguous development
Use performance based rezoning tools that will allow compact and contiguous development and discourage the inefficient use of land and infrastructure.
In accommodating and managing growth and facilitating redevelopment, we will promote and apply urban design principles that contribute to the safety, attractiveness and convenience of our communities. Our suburban residential areas will provide for choice of housing style and location and include a mix of single and multiple family housing. Our commercial and industrial areas will provide a variety of environments conducive to the conduct of business activities.
Apply performance standards and architectural controls to promote safe, attractive and convenient communities.
We will ensure that sufficient recreational facilities and open spaces are available and accessible for the enjoyment of our citizens. We will protect the North Saskatchewan River Valley and Ravine System and seek to conserve regional environmentally sensitive areas and natural sites for the benefit of future generations.
Establish accessible open spaces, protect the NSRV and Ravine System and conserve regional environmentally sensitive areas and natural sites through performance based zoning mechanisms. Coordinate with the open space plan proposed through Plan Edmonton.
Directions for a New Zoning Bylaw: Plan Edmonton's Influence
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Plan Edmonton's Land Development Concept Map 1
MAP I LAND DEVELOPMENT CONCEPT
This map represents a broad and conceptual illustration of the desired land development structure and is not intended to provide site specific direction to land use regulation.
NORTH SASKATCHEWAN RIVER VALLEY AND RAVINE SYSTEM
1 LittiUkR
TRANSPORTATION & UTILITY CORRIDOR ENVIRONMENTAL RESTRICTED DEVELOPMENT AREA AGRICULTURE AREA MATURE AREA SUBURBAN AREA BUSINESS & EMPLOYMENT AREA DOWNTOWN
Plan Edmonton, Bylaw No. 11777, as Amended
Directions for a New Zoning Bylaw: Plan Edmonton's Influence
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Implications for the Zoning Bylaw
Plan Edmonton's Economic Activity Centres and Heavy Industrial Areas Map 2
MAP 2
This map represents a broad and conceptual illustration of the desired land development structure and is not intended to provide site specific direction to land use regulation.
ECONOMIC ACTIVITY CENTRES AND HEAVY INDUSTRIAL AREAS GI
EXISTING ECONOMIC ACTIVITY CENTRES
* POTENTIAL ECONOMIC ACTIVITY CENTRES HEAVY INDUSTRIAL AREAS
YELLOWHEAD TRAIL 118 AVE
NAIT / AIRPORT/ ROYAL ALEX HOSPITAL
co 104 AVE
DOWNTOWN WEST EDMONTON 82 AVE WHITEMU
DRIVE
UNIVERSITY 0 ALBERTA/ NIVERSITY HOSPITAL
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23 AVE
pm EDMONTON RESEARCH & DEVELOPMENT PARK ELLERSLIE ROAD
* ELLERSLIE
Plan Edmonton, Bylaw No. 11777, as Amended
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Plan Edmonton's Priorities & Strategies
Implications for the Zoning Bylaw
Priority: Land Development Philosophy Develop and utilize a land development philosophy that meets the City's long-term development needs and achieves the optimal balance between residential, industrial, commercial, institutional and recreational land use. Strategy: 1.1.1 Provide for choices regarding the types of developments in which people want to live and do business,
Achieve residential and commercial flexibility through development options such as performance based zoning mechanisms. Use mechanisms such as performance based zoning tools and impact assessment. Apply recommendations from "The Development of Separation Distances and Transition Zones Between Heavy Industry and Other Land Uses in Edmonton — A Risk Management Approach". Use tools such as architectural controls and urban design guidelines to enhance the quality and safety of the urban environment.
1.1.2
Address compatibility of land use in the development and review of land use plans and development proposals.
1.1.3
Use and promote urban design principles and guidelines that enhance the quality of the urban environment,
1.1.4
Protect attractiveness of heavy industrial areas for industry by incorporating risk management concepts and new regulatory approaches in keeping with "A Risk Management Approach". Ensure industrial land supply through the zoning Ensure an adequate supply of industrial map and with flexibility to rezone new areas for land. industrial uses based on performance and risk management approaches. Revise industrial land use districts to reflect the Address adequate separation distances differing impacts of industrial activities and and effective transition zones between heavy industry and other uses through a hazardous uses; provide new transition zone risk management approach based on the districts; and, incorporate new regulatory approaches that recognize the performance of the principles of: use, type of activity and potential impact. • risk reduction at source; Implement recommendations from "A Risk • risk reduction through land use Management Approach". controls; • emergency preparedness; • emergency response; and • risk communication.
1.1.5
1.1.6
Develop strategies to focus heavy industrial land development in the areas identified on Map 2.
Directions for a New Zoning Bylaw: Plan Edmonton's Influence
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Plan Edmonton's Priorities & Strategies
1.1.7
Explore the potential to cluster complementary businesses,
1.1.8
Accommodate home-based businesses and services.
1.1.9
Work cooperatively with neighbouring municipalities to ensure effective use and development of the City's "fringe" lands.
Implications for the Zoning Bylaw
Designate appropriate areas to cluster complementary business through the zoning map, districts and performance based zoning approaches. Maintain flexibility in residential districts for home occupations, day cares, group homes, and so on. Review intermunicipal planning processes and adjacent municipalities' MDPs to establish appropriate use and development of land in the "fringe" area. Implement agreed upon referral and implementation mechanisms.
1.1.10 Examine and develop workable alternatives to share the costs of development for infrastructure and services. 1.1.11 Work cooperatively with school boards, other levels of government and educational institutions to foster the objectives of the physical growth strategy. 1.1.12 Place a high priority on the effective and efficient use of land.
1.1.13
Plan for urban development which is environmentally and fiscally sustainable in the long term, based on the City's financing, infrastructure and environmental strategies.
1.1.14
Maintain the integrity of pipelines and utility corridors while planning for growth and development,
Zoning mechanisms should provide for "highest and best" use of land to be achieved. Use performance based zoning approaches to accommodate maximum densities, considering the impacts on the environment, municipal infrastructure, fiscal capacities and "quality of life". Use approaches such as impact and performance zoning, where appropriate, to ensure that urban development is environmentally and fiscally sustainable.
Incorporate setbacks (based on guidelines from the Alberta Energy and Utility Board, where applicable) that restrict development by applying minimum separation distances near pipelines and utility corridors.
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Plan Edmonton's Priorities & Strategies
1.1.15
Protect, for future use, significant deposits of natural resources including sand, gravel, top soil, oil and gas, and ensure appropriate rehabilitation after extraction.
1.1.16 Ensure City plans and policies give clear, consistent development guidelines,
Implications for the Zoning Bylaw
Map and apply development restrictions that will enable future extraction of significant natural resources. Incorporate rehabilitation regulations.
Zoning bylaw should similarly give clear, consistent development guidelines.
Carry forward an open, flexible approach in the Zoning Bylaw, i.e., pre-decision notifications. Zoning techniques should be flexible to accommodate change. Carry forward recommendations from the "Planning Process Round Table". Protect transportation corridors through overlay 1.1.18 Plan for and protect transportation corridors required to implement the City of zoning techniques or direct control approaches, coordinating with the TMP. Edmonton's Transportation Master Plan.
1.1.17 Provide an open, flexible planning process that includes residents in policy development and plans for growth and change.
1.1.19
Adopt a Land Use Bylaw which reflects the land development philosophy of this Plan.
Implement the land development philosophy through approaches in the zoning bylaw, as noted previously on pages 1 and 2.
Priority: Downtown Development Ensure that downtown Edmonton is vibrant and alive — a magnet for business, commerce and people, with unique and attractive residential districts, and diverse entertainment, recreation and cultural opportunities. Strategy: 1.2.1 The Capital City Downtown Plan will be the primary policy document guiding development in the Downtown. Key components will: • promote economic development; • support commercial and institutional activities; • encourage arts, culture and entertainment; • increase Downtown's residential population; • provide more parks, special places and open spaces for recreation;
Implement the Capital City Downtown Plan, specifically Section V, Land Use.
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Plan Edmonton's Priorities & Strategies
Implications for the Zoning Bylaw
• improve pedestrian circulation and Downtown parking; • promote a "transit first" policy for trips to and from the Downtown; • preserve Edmonton's architectural heritage; and • promote urban design standards appropriate to the Downtown environment. 1.2.2
Maintain support for and implement the Downtown Plan.
Implement the Capital City Downtown Plan, specifically Section V, Land Use.
Priority: Utilization of Existing Infrastructure Encourage maximum development around existing City infrastructure. This will include encouraging the utilization of the existing supply of lands in Area Structure Plans approved for development before undertaking additional expansion; "building out" and servicing all approved neighbourhoods; and supporting strategic growth of the City, rather than "growth for the sake of growth". Strategy: 1.3.1 Preserve agricultural land, identified on Map 1, until needed for urban development,
Place restrictive zoning on agricultural land with respect to appropriate uses, minimum lot sizes and/or density provisions.
1.3.2 Prevent premature fragmentation of agricultural land prior to the extension of cost-effective urban services,
Place restrictive zoning on agricultural land with respect to appropriate uses, minimum lot sizes and/or density provisions.
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Plan Edmonton's Priorities & Strategies
1.3.3
Support contiguous development that is adjacent to existing development in order to accommodate growth in an orderly and economical fashion.
1.3.4 Promote intensification of development around transportation corridors and employment areas, 1.3.5 Support increased densities of land use through in fill development that is sensitive to existing development. 1.3.6
Manage the City-owned land and facility inventor), to optimize existing infrastructure,
1.3.7
Pursue joint-use agreements for community facilities and services.
Priority:
Implications for the Zoning Bylaw
Zoning map will provide for orderly, contiguous development. Consider performance based zoning approaches that would restrict noncontiguous rezoning approvals. Enable intensification around transportation corridors and employment areas through appropriate density provisions and/or performance based zoning. Provide for increased infill densities that are sensitive to existing development by implementing the "Mature Neighbourhoods Overlay". Ensure that districts in which city facilities are located provide the flexibility to intensify and/or redevelop for optimization.
Economic Activity Centres Within the City
Recognize the existence and the potential of economic activity centres within the City and encourage these vibrant growth areas by fostering the mix of services and businesses which support and link them. Strategy: 1.4.1 Promote Edmonton's existing and potential economic activity centres, identified on Map 2, while continuing to support existing commercial and industrial areas.
Designate existing "economic activity centres" and incorporate flexible zoning approaches for potential areas to be recognized.
1.4.2
Provide for clustering of compatible development through permitted and discretionary uses; performance based zoning approaches.
Provide for clustering of compatible development in economic activity centres.
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Plan Edmonton's Priorities & Strategies
Implications for the Zoning Bylaw
1.4.3 Support public and private sector efforts dedicated to development and enhancement of economic activity centres. 1.4.4 Provide supporting infrastructure, services and linkages for economic activity centres. Priority: Reinvestment in Mature Neighbourhoods Invest in the redevelopment and revitalization of mature neighbourhoods, including appropriate responses to the evolving needs of residents as community demographics change. Strategy: 1.5.1 Adapt community facilities and services to meet changing needs, 1.5.2 Encourage rehabilitation, redevelopment and in filling to increase the amount and quality of housing in mature neighbourhoods. 1.5.3
Create flexible districts that will enable the conversion of community facilities to adapt to changing needs; use performance based zoning. Allow an increase in the amount and quality of housing in mature neighbourhoods through zoning and architectural controls.
Maintain and renew necessary infrastructure in mature neighbourhoods.
1.5.4 Maintain and improve older commercial and industrial areas while mitigating negative impacts on adjacent neighbourhoods.
Use performance based zoning approaches to ensure that older commercial and industrial areas redevelop without negatively affecting adjacent neighbourhoods.
1.5.5 Preserve historically significant older buildings, structures and areas through the Register of Historic Resources in Edmonton and related programs and policies.
Implement preservation of historically significant buildings, structures and areas through performance based zoning techniques or a direct development control approach to zoning.
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Plan Edmonton's Priorities & Strategies
Priority:
Implications for the Zoning Bylaw
Preservation and Enhancement of the Natural Environment and Open Spaces
Preserve and enhance the river valley, natural areas and open space within the urban landscape; recognize these areas as critical aspects of successful planned growth of the City; and, link them to the extent possible.
Strategy: 1.6.1 Develop a comprehensive, integrated plan for the river valley, natural areas and open space lands that: • integrates and connects natural areas within the urban fabric to provide access; • develops access and recreational use opportunities while protecting the natural environment; • encourages the conservation and integration of natural areas that are sustainable and feasible; and • re-defines the principle and practices of Municipal Reserve allocation to support the objectives of the open space plan. 1.6.2
Implement comprehensive river valley, natural areas and open space plan (in progress) through the zoning bylaw, perhaps with performance based (impact) zoning or direct development control approaches. Consider incentive zoning and/or inclusionary zoning approaches to create options that will facilitate environmental protection.
Implement policies for the conservation of Implement policies for the conservation of natural natural sites in Edmonton's table lands and sites through appropriate zoning approaches, i.e., performance based (impact) zoning or direct the North Saskatchewan River Valley and development control. Consider incentive zoning Ravine System through the planning and / or inclusionary zoning approaches to create process. options that will facilitate conservation.
1.6.3 Work pro-actively with the Provincial Government to ensure that Crown interests in water bodies are addressed prior to development.
Address Crown interests in waterbodies and consider using an overlay zoning approach to advise landowners in advance of the Crown's interests.
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Plan Edmonton's Priorities & Strategies
Implications for the Zoning Bylaw
Priority: Managing Suburban Growth Manage suburban growth in a manner that ensures adequate infrastructure and services and maintains a balance of residential, commercial, industrial and recreational land uses. Strategy: 1.7.1 Accommodate growth in an orderly, serviced and cost-effective manner.
Consider using performance based (impact) zoning approach to ensure that new growth is costeffective.
1.7.2 Provide for a range of housing types and densities in each residential neighbourhood.
Carry forward, from NSP's, provisions for a mix of housing types and densities.
1.7.3
Provide flexibility to create attractive and functional residential neighbourhoods and business areas through performance based zoning mechanisms.
Encourage flexibility in creating attractive and functional residential neighbourhoods and business areas.
1.7.4 Ensure availability and access to recreational opportunities and open spaces.
Priority: Population Growth Plan for a population base in the range of 800,000 to 900,000 residents by the year 2020.
Strategy: 1.8.1 Plan and fund the development of such municipal facilities and services as the City can afford to support the population growth expectations of this Plan.
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Plan Edmonton's Priorities & Strategies
The following strategies (1.9.1 - 1.9.9) have a direct relationship with the subdivision process. Strategy 1.9.9 will also be implemented through the Zoning Bylaw. Municipal Reserves 1.9.1
Where authorized by, and in accordance with, the Municipal Government Act, the Subdivision Authority of the City of Edmonton will require the owner of a parcel of land that is the subject of a proposed subdivision to dedicate to the City of Edmonton: • part of that parcel as municipal reserve; • money in place of municipal reserve; • any combination of land and money in place of municipal reserve; or • a deferred reserve caveat.
1.9.2
Land or money dedicated as municipal reserve will be dedicated to the City of Edmonton to be used for schools, parks and other public recreation purposes.
1.9.3
The amount of the municipal reserve to be dedicated will be determined, during the subdivision process, based on the gross developable area of a parcel of land that is the subject of a proposed subdivision.
1.9.4
Gross developable area is defined, for the purpose of this municipal development plan, as the total area of the parcel of land less the land required to be provided as environmental reserve and the land made subject to an environmental reserve easement.
1.9.5
The amount of municipal reserve to be dedicated will be equivalent to ten per cent (10%) of the gross developable area of a parcel of land that is the subject of a proposed subdivision, which is the minimum amount necessary to augment other city resources to provide the basic levels of school, parks and public recreational facilities acceptable to the citizens of Edmonton.
1.9.6
When, in the opinion of the Subdivision Authority, the future residential development density of a parcel of land that is the subject of a proposed subdivision will exceed thirty (30) dwelling units per hectare, the Subdivision Authority may require the dedication of municipal reserve up to an additional five per cent (5%) of the parcel's developable land, as defined in Section 668 of the Municipal Government Act, to accommodate additional requirements for schools, parks and public recreational facilities.
1.9.7
When a municipal reserve dedication includes money or a combination of land and money, the sum of the money to be dedicated and the appraised market value of the land to be dedicated will be equal to the appraised market value of the maximum amount of municipal reserve dedication permitted under by the Municipal Government Act.
1.9.8
Allocation of municipal reserve lands for school and park purposes shall be governed by the Joint Use Agreement between the City of Edmonton and the School Authorities, as defined by the Municipal Government Act.
Sour Gas Facilities 1.9.9 The City of Edmonton will apply Alberta Energy and Utility Board guidelines with respect to minimum separation distances between sour gas facilities and other land uses through land subdivision and development processes.
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