6 - REF 2015-005 ISL Evaluation
STATUTORY PLAN EVALUATION REPORT City of Edmonton Decoteau Area Structure Plan new plan amendment Board Reference : REF 2015-005 Proposed Municipal Bylaw No.: 17011 Legal STURGEON COUNTY Alcomdale Redwater Andrew Bon Accord Mearns Star Morinville ALEXANDER I.R. 134 Riviere Qui Barre Carbondale Lamoureux Namao Calahoo Villeneuve Airport Villeneuve St. Albert Fallis Wabamun Josephburg Fort Saskatchewan CFB/ASU Edmonton S T R AT H C O N A COUNTY Entwistle Gainford Bruderheim Gibbons Cardiff Pine Sands Spruce Grove Duffield WABAMUN I.R. 133A/B Edmonton Carvel Spring Lake Keephills Tomahawk Sherwood Park Nisku Thorsby Sunnybrook LEDUC COUNTY Mundare Hastings Lake Looma Beaumont New Sarepta E.I.A. Warburg Hilliard North Cooking Collingwood Cove Lake Devon Calmar Chipman Antler Lake South Cooking Lake Buford LAMONT COUNTY Half Moon Lake PA R K L A N D COUNTY Telfordville Whitford Ardrossan STONY PLAIN I.R. 135 Stony Plain Lamont St. Michael Wostok Leduc Rolly View Kavanagh Produced by ISL Engineering and Land Services Ltd. for the Capital Region Board. © 2015 Base map data provided by Spatial Data Warehouse Ltd., Alberta Transportation and GeoEdmonton. Introduction The Province has adopted the Regional Evaluation Framework for the Capital Region Board’s evaluation of statutory plans. Its purpose is to provide criteria to allow the Capital Region Board to evaluate new municipal statutory plans and statutory plan amendments to ensure consistency with the long-term regional interests identified in the Capital Region Growth Plan and the Capital Region Board Regulation. Section 3.4 of the Regional Evaluation Framework (REF) states that a municipality must refer proposed statutory plans or statutory plan amendments to the Capital Region Board (CRB) after first reading and prior to third reading under certain conditions. The City of Edmonton has referred the proposed Decoteau Area Structure Plan to the CRB per the following referral conditions of the REF: April 2015 over » Decoteau Area Structure Plan 3.2 page 2 of 7 A municipality must refer to the Board any other statutory plan or statutory plan amendment where: a) one or more of the following conditions exist: (iv) the plan boundaries are within 0.8 km of a road identified in the Regional Transportation Infrastructure map of the Capital Region Growth Plan; and (ii) the distribution, expansion and/or integrated development of the regional infrastructure, and recreation, transportation and utility corridors as identified on the Regional Transportation Infrastructure, Regional Water and Wastewater Infrastructure, Regional Power Infrastructure and Regional Corridors maps in the Capital Region Growth Plan or conservation buffers as shown on the Regional Buffers Areas Map of the Capital Region Growth Plan. Purpose The purpose of the proposed Decoteau Area Structure Plan is to establish a framework for future land use planning and the provision of municipal infrastructure, services and amenities based on established planning principles, requirements of the City of Edmonton, and the characteristics and opportunities contained within the site. The ASP describes the land uses and their general locations, the proposed density of residential development, the general location of major transportation routes and public utilities and the general sequence of development. Recommendation That the Decoteau Area Structure Plan be APPROVED. Background Information Municipality: City of Edmonton Owner: Multiple landowners First Reading Date: March 16, 2015 Plan Area Location: South of Anthony Henday Drive and Ellerslie Road (9 Avenue SW), east of 50 Street SW and west of Meridian Street (1 Street SW) and north of 41 Avenue SW Proposed Land Use Designation: Existing country residential, residential, town centre mixed use, commercial/office, commercial/office/residential mixed use, business employment, schools & community park, district activity park, urban village park, existing park, natural area, wetland with buffer April 2015 over » Decoteau Area Structure Plan page 3 of 7 Summary This REF review involves a new Area Structure Plan in the City of Edmonton abutting the City’s south and east borders. The ASP plan area is designated as an Urban Growth Area within the City’s Municipal Development Plan (MDP), The Way We Grow. The proposed Decoteau ASP plan area is approximately 1960 ha, and designates boundaries for five neighbourhoods. Each neighbourhood will require the preparation of a Neighbourhood Structure Plan (NSP) prior to proceeding with rezoning and any land development. The ASP anticipates a population of 74,564, and is intended to develop over a period of approximately 30 years. Evaluation Criteria 5.4(a) Compatibility of the development with the objectives of the Capital Region Growth Plan as set out in Section 11 of the Regulation: 11(a) to promote an integrated and strategic approach to planning for future growth in the Capital Region »» The proposed Decoteau ASP promotes an integrated and strategic approach to planning for future growth in the Capital Region by aligning with the City’s MDP policies, and establishing a policy framework for the further land use planning and the provision of municipal infrastructure, services and amenities for five new neighbourhoods in the City of Edmonton. 11(b)(i) to identify the overall development pattern and key future infrastructure investments that would best complement existing infrastructure, services and land uses in the Capital Region »» The proposed Decoteau ASP proposes anticipated development that is a logical extension of infrastructure and services. The ASP establishes the general location of major transportation routes and utilities and the general sequence of development that connects to approved development to the west and existing development north of Anthony Henday Drive. »» The Decoteau ASP is designated for urban growth in the City’s MDP, and is the last ASP of the City’s growth areas to be prepared. As an outcome of The Way We Grow, the City of Edmonton established a Growth Coordination Strategy to coordinate the planning of new neighbourhoods. An intention of the strategy is to demonstrate the availability and cost of infrastructure necessary to support new development. The City has indicated that the Decoteau ASP complies with the information requirements of the Strategy. April 2015 over » Decoteau Area Structure Plan page 4 of 7 11(b)(ii) to identify the overall development pattern and key future infrastructure investments that would maximize benefits to the Capital Region »» The proposed Decoteau ASP identifies a development pattern and infrastructure that would maximize benefits to the Capital Region by designating a range of land uses that support the integration of natural areas and future transportation infrastructure with residential, recreational, commercial, institutional, and commercial/office land uses. The ASP designates residential land uses that meet the density targets assigned by the Growth Plan, and also includes employment areas which are an integral land use within PGAs. 11(c) to co-ordinate decisions in the Capital Region to sustain economic growth and ensure strong communities and a healthy environment »» The proposed Decoteau ASP sustains economic growth within the Region by providing employment opportunities within the business employment land use designation. The ASP also supports strong communities and a healthy environment by providing for local and city-wide recreational areas and amenities; integrating uses and land use functions by connecting parks, recreational sites, amenities and natural areas; and retaining environmentally significant areas. 5.4(b) Whether the approval and full implementation of the statutory plan or statutory plan amendment would result in development that is consistent with all of the following: (i) The Land Use Principles and Policies of the Capital Region Growth Plan including the provisions for: »» In addition to being evaluated for consistency with the following five specific provisions, the proposed Decoteau has also been evaluated for consistency with the Land Use Principles and Policies of the Growth Plan. For more information on the consistencies with the applicable Principles and Policies, refer to Attachment 1. i. Buffer areas as shown on the Regional Buffer Areas map in the Capital Region Growth Plan »» The Decoteau ASP plan area is immediately south of the Transportation Utility Corridor (Anthony Henday Drive) which is identified as a compatibility buffer in the December 2009 Addendum to the Growth Plan. The ASP protects this regional corridor and buffer area. »» The City indicates that a Phase I Ecological Network Report was prepared in support of the planning activities for the Decoteau ASP, and the ASP subsequently identifies areas to be retained through a combination of purchase and dedication of Environmental Reserve and Municipal Reserve. Additional ecological studies will be required in support of the future NSPs to identify how the natural areas and Crown-claimed wetlands will be sustained in the long term as lands are developed for urban uses. April 2015 over » Decoteau Area Structure Plan ii. page 5 of 7 Priority Growth Areas (PGAs) as shown on the Priority Growth Areas and Cluster Country Residential Areas (PGAs and CCRAs) map in the Capital Region Growth Plan »» The Decoteau ASP is located within the conceptual boundaries of PGAs B and Ce. The proposed development pattern and land uses are appropriate for PGAs including mixed use and employment areas. »» Refer to Evaluation Criteria 5.4(b)(i)iv for comments on how the proposed Decoteau ASP implements the residential density target associated with PGAs B and Ce. iii. Cluster Country Residential Areas (CCRAs) as shown on the Priority Growth Areas and Cluster Country Residential Areas (PGAs and CCRAs) map in the Capital Region Growth Plan »» Not applicable. iv. Density targets as outlined in the Capital Region Growth Plan »» The Decoteau ASP is located within the conceptual boundaries of PGAs B and Ce, which are assigned density targets of 30-45+ and 25-35 dwelling units per net residential hectare (du/ nrha) respectively. »» The Decoteau ASP complies with the density targets mandated by the Growth Plan. The overall net residential density across the five neighbourhoods within the plan area is 34 du/nrha. There is an existing country residential development within the ASP that encompasses 72.1 ha (3.7%) of the gross land area of the ASP, and is not included in the calculation of net residential density. The ASP anticipates that this development will remain, and states that redevelopment of the country residential area will require an amendment to the ASP. If an amendment does come forward, new residential development must comply with the Growth Plan’s density targets. v. Outside Priority Growth Areas (PGAs) and Cluster Country Residential Areas (CCRAs) »» Not applicable. (ii) The regional population and employment forecasts in the Capital Region Growth Plan Population Forecasts: »» The December 2009 Addendum forecasts the population of Edmonton and PGA Ce to be 1,176,931 and 36,763 by 2044 respectively. The proposed Decoteau ASP estimates a population of 74,564 at full build-out. The City of Edmonton anticipates it will take 35-40 years for Decoteau to achieve full build-out (2050 to 2055). »» The proposed ASP is located within an area previously approved to accommodate future growth within the Capital Region (refer to the CRB’s previous approval of REF 2010-001, Edmonton’s MDP). As there are other residential areas within PGA Ce that are already subject to active development, it is likely that full build-out of Decoteau will not occur until beyond 40 years from now. Furthermore, it is likely that Decoteau will have a redistribution effect on forecasted population growth by providing more options to absorb growth prior to 2044. However, this April 2015 over » Decoteau Area Structure Plan page 6 of 7 effect will not occur until neighbourhood structure plans (NSPs) are approved and subdivision begins. Notwithstanding, it is anticipated that the redistribution effect would be marginal and mostly limited to an internal redistribution of Edmonton’s portion of forecasted population growth to 2044. Employment Forecasts: »» Provision of employment projections within an ASP is not a requirement of the Municipal Government Act. The proposed ASP identifies commercial, office and school uses to support future population growth in the plan area. It also identifies a business employment area for light and medium industrial and ancillary office uses within the northeast portion of the plan area. The proposed ASP therefore provides a greater amount and diversity of employment opportunities for future its residents. (iii) The regional transportation network as shown in the Regional Transportation Infrastructure map in the Capital Region Growth Plan »» Anthony Henday Drive and 50 Street border the Decoteau ASP area to the north and west respectively, and are designated as Long Term Intermunicipal Bus routes on the Regional Transportation Infrastructure map of the Capital Region Growth Plan. Full implementation of the proposed ASP is consistent with and is anticipated to have no detrimental impact on the regional transportation network presented in the December 2009 Addendum to the Growth Plan. Regional Transit Network: »» Refer to Evaluation Criteria 5.4(b)(iv) in this report. (iv) The Intermunicipal Transit Network Plan (ITNP) of the Capital Region Growth Plan (Figures 8, 9 or 10 of the Capital Region ITNP), and a Transportation Master Plan (TMP) as approved by the City of Edmonton Intermunicipal Transit Network Plan: »» Figure 8 of the Intermunicipal Transit Network Plan (INTP) designates 50 Street to accommodate an intermunicipal bus route between the City of Edmonton and the Town of Beaumont in the short term. Over the long term (Figure 10), Anthony Henday Drive is designated for an Intermunicipal bus route. »» Full implementation of the proposed ASP is consistent with and is anticipated to have no detrimental impact on the intermunicipal bus routes as presented on Figures 8 through 10 of the Capital Region ITNP. April 2015 over » Decoteau Area Structure Plan page 7 of 7 Edmonton Transportation Master Plan: »» The proposed ASP complies with the City of Edmonton’s Transportation Master Plan, The Way We Move by: • Designating a town centre that is supported by policies to integrate bus transit and potential future LRT; • Including policies so that the town centre will contain a mixture of uses at medium and high densities to support public transportation services; • Providing a logical and well-connected roadway network; • Containing objectives, policies and land uses that support walkability; and • Promoting a multi-modal transportation network. (v) The regional infrastructure, and recreation, transportation and utility corridors as identified on the Regional Transportation Infrastructure, Regional Water and Wastewater Infrastructure, Regional Power Infrastructure, and Regional Corridors maps of the Capital Region Growth Plan Regional Transportation Infrastructure: »» Refer to Evaluation Criteria 5.4(b)(iii) and (iv) in this report. Regional Water and Wastewater Infrastructure: »» There are no regional water and wastewater infrastructure within or adjacent to the plan area. Regional Power Infrastructure: »» There is an existing 240 kV power transmission corridor in the TUC north of the ASP plan area, as well as a 130 kV power transmission corridor within the boundaries of the ASP plan area. The ASP protects the corridor within its boundaries through policy and graphic representation. Regional Corridors: »» The boundary of the proposed Decoteau ASP plan area is immediately south of the TUC (Anthony Henday Drive) which is designated as a Regional Corridor in the December 2009 Addendum to the Growth Plan. The full implementation of the proposed ASP is consistent with and is anticipated to have no detrimental impact on this Regional Corridor. (vi) The boundaries and policies of the Alberta’s Industrial Heartland (AIH) Area Structure Plans (ASPs) and the Edmonton International Airport (EIA) Area Structure Plan (ASP) »» Not applicable. Attachments Attachment 1 – Consistency with the Land Use Principles and Policies of the Capital Region Growth Plan Attachment 2 – Bylaw 17011 Decoteau Area Structure Plan April 2015 over » Attachment Attachment 1: Consistency with the Land Use Principles and Policies of the Capital Region Growth Plan Core Principle I: Protect the Environment and Resources Principle Consistent A. Preserve and Protect the Environment B. Preserve Agricultural Lands n/a Comments There are locally and regionally significant natural areas, and Crownclaimed wetlands located within the Decoteau ASP plan area. Supported by ecological studies, the proposed ASP designates an interconnected system of open spaces, preserved upland natural areas, retention of existing wetlands. All wetlands claimed by the Province (Environmental Reserve) will be retained in their natural state. The Decoteau ASP plan area was previously identified for urban growth in the City of Edmonton’s Municipal Development Plan and therefore does not identify lands for the exclusive use of agriculture. The proposed ASP does contain policy to promote urban agriculture through community gardens and other urban agricultural practices. C. Protect Natural Resources D. Minimize the Impact of Development on Regional Watersheds and Airsheds E. Minimize the Impact of Heavy Industrial Developments n/a There are eight wells, nine pipelines and one active oil battery facility within the ASP plan area. The Decoteau ASP contains policy requiring that future development be designed to comply with relevant Alberta Energy Regulator regulations and relevant City of Edmonton policies. Additional policy requires that risk assessments be prepared at the Neighbourhood Structure Plan stage for all areas adjacent to high pressure oil and gas lines. The proposed ASP protects local watersheds through the dedication of Environmental Reserves for wetlands that are being claimed by the Province. continued» Attachment Core Principle II: Minimize Regional Footprint Principle A. Identify, Protect and Prioritize Lands for Regional Infrastructure B. Concentrate New Growth Within Priority Growth Areas C. Allow Growth Outside of Priority Growth Areas Consistent Comments The Transportation and Utility Corridor, power transmission corridors and pipeline corridors within the plan area are identified and protected through policy or graphic representation. The Decoteau ASP plan area is within the conceptual boundaries of PGA B and PGA Ce. The land use concept, net residential densities and transportation network will facilitate development that is appropriate for PGAs. n/a D. Support Expansion of Medium and Higher Density Residential Housing Forms E. Support Cluster Country Residential Development n/a The proposed ASP provides for the future development of medium and higher density residential housing. Detailed locations and densities will be further determined at the NSP stage. Core Principle III: Strengthen Communities Principle A. Create Inclusive Communities B. Support Healthy Communities Consistent The Decoteau ASP includes connected natural features, open spaces, neighbourhood-level park sites as well as a recreation facility, providing support for a strong social infrastructure and inclusive neighbourhoods. An objective of the Decoteau ASP is to support a transportation modal shift. This is envisioned to be achieved through a highly connected transportation, bicycle and pedestrian network. C. Support Public Transit D. Support Innovative and Affordable Housing Options Comments Policies within the proposed ASP promote higher residential densities in proximity to the future transit station and in the mixed use area. The proposed ASP also indicates that all residential development will be within 400 m of transit service. The proposed ASP includes policy to support a range of housing options to provide for a diversity of housing needs and housing forms. continued» Attachment Core Principle IV: Increase Transportation Choice Principle A. Integrate Transportation Systems with Land Use Consistent Comments Policy within the proposed Decoteau ASP states that all residential development will be within 400 m of transit service. As well, the town centre concept and associated mixed use, higher density development integrates land use with transportation infrastructure. ASP policy also supports a highly connected transportation and pedestrian network as well as dedicated bikeways. B. Support the Expansion of Transit Service in Various Forms The proposed ASP contains objectives to support the use of transit and active modes of transportation. The ASP also designates land for a town centre that includes residential and non-residential mixed use integrated with a transit centre and potential future LRT. Core Principle V: Ensure Efficient Provision of Services Principle A. Design Integrated Physical Infrastructure with the Region B. Maximize Utilization of Existing Infrastructure Consistent Comments The ASP plan area includes nine pipeline rights-of-way and a power transmission right-of-way. Through policy or graphic representation, the ASP protects these corridors. Future Intermunicipal bus in the short and long term are protected. The proposed ASP is a logical extension of existing development. The objectives of the ASP encourage low impact development approaches. As well, the ASP aligns with the City of Edmonton’s Growth Coordination Strategy and Integrated Infrastructure Management Plan. Attachment Core Principle VI: Support Regional Economic Development Principle A. Ensure a Supply of Land to Sustain a Variety of Economic Development Activities B. Attract and Retain Individuals and Families with a Diverse Range of Skills to the Capital Region to Satisfy the Region’s Economic Development Goals C. Support Regional Prosperity D. Position the Capital Region Competitively on the World Stage Comments Consistent The proposed Decoteau ASP designates about 6.3% of net developable land for business employment land uses. In addition 2.5% of developable land area is designated for commercial land uses. Policy within the proposed ASP states that land for business employment will accommodate light and medium industrial, as well as ancillary commercial land uses The proposed land use designations and supporting policies in the ASP will provide a range of employment opportunities and amenities to attract and retain a diverse range of people. The proposed ASP provides opportunities for light and medium industrial land uses which are intended to support industrial, manufacturing, trade and transportation activities in the Region. The ASP establishes a policy framework for five neighbourhoods of communities to attract a diverse range of people, support a wide variety of employment opportunities, healthy communities and high quality amenities. Attachment Attachment 2: Bylaw 17011 Decoteau Area Structure Plan SCHEDULE "A" 2/86
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