CITY COUNCIL AGENDA REPORT Subject: BYLAW 27/2015-SOUTH RIEL AREA STRUCTURE PLAN AMENDMENT-6 CITY ANNEX Recommendations 1. That Bylaw 27/2015, South Riel Area Structure Plan, be read a first time. 2. That Bylaw 27/2015 be read a second time. 3. That unanimous consent be given for consideration of third reading of Bylaw 27/2015. 4. That Bylaw 27/2015 be read a third and final time. Purpose of Report The purpose of this report is to provide an overview of the proposed amendments to the South Riel Area Structure Plan. These particular amendments relate to the medium and medium/high density residential land designations, located at 6 City Annex, commonly known as the Averton South Riel properties, and shown as Stage 3 on Attachment 2, Figure 10, page 34. The amendments will enable the development of a unique residential community for the next generation of St. Albert, providing residents with a variety of lifestyle options, market affordable housing in a variety of forms, with varied green spaces, neighbourhood shops, and amenities. This walkable community will be a cornerstone of what is expected to become a viable mixed-use urban village setting. It is expected to have a mix of low-rise apartments, a variety of different duplex and townhouse building forms, along with interconnected trails, sidewalks, and multi-purpose open spaces. The amendments propose to introduce a commercial/residential mixed use parcel as well. It is recommended that the Bylaw 21/2007 South Riel Area Structure Plan as Amended be repealed and replaced with Bylaw 27/2015. City Council Agenda August 24, 2015 / Page 1 File No.: 10453-0 Council Direction The South Riel Area Structure Plan was first adopted through Bylaw 21/2007 and most recently amended on September 6, 2011 with Bylaw 29/2011. Policies 17.2 and 17.3 in the Municipal Development Plan require conformance of Areas Structure Plans and the Land Use Bylaw with the Municipal Development Plan. Background and Discussion WSP Canada Inc., on behalf of South Riel Development Corporation, has applied to amend the South Riel Area Structure Plan (ASP). The proposed amendment applies to the 18 hectare± (44.5 acre±) parcel located at 6 City Annex; north of LeClair Way, east of Riel Drive, south of Levasseur Road, and west of the CN Railway. Land Use Concept South Riel ASP, 6 City Annex To provide a more viable design for this predominantly residential component of the ASP, a number of amendments are proposed: • Moving the medium/high density residential component eastward, away from Riel Drive and closer to the railway. This will provide a better transition across Riel Drive to the western part of the neighbourhood, and a more effective and open design. • Introducing a commercial/residential mixed-use component at the south end of this parcel, north of LeClair Way to provide an opportunity for additional housing forms and local commercial services. • Removing the institutional use from the ASP area. • Changing the park from a linear park system located adjacent to the railway, to three distinct, centrally located park areas. This will provide better more viable park spaces and recreational and leisure opportunities for residents suited to the type of neighbourhood. Administration has updated the Area Structure Plan document to address engineering and servicing master plan updates and issues, and to clearly articulate the limitations of the approval of the South Riel Area Structure Plan as amended. Servicing and Transportation Challenges There are some challenges and considerations that still need to be considered; however, these can be addressed on an incremental basis as the applicant moves through the development stages. These do not preclude approval of the ASP: • Servicing – this area is tied with Project 9. Full integration with the wastewater system for this development is contingent upon completion of City Council Agenda August 24, 2015 / Page 2 File No.: 10453-0 that project. However, staff may consider potential interim solutions from the developer at each development stage prior to completion of that line. • Transportation – While a Traffic Impact Assessment has been completed, it suggests significant upgrades are needed at the intersections of Riel Drive and LeClair Way, as well as LeClair Way and Ray Gibbon Drive, to accommodate the traffic associated with the proposed development at full build-out. However, traffic impact will be assessed at each development stage to determine the incremental impact and whether or not development can proceed. • The residential density statistics proposed in the application are not the maximum allowed the potential land use districts. While the proposed densities are suitable for supporting this type of urban village development, the maximum allowable densities for a particular site under the Land Use Bylaw can not be considered without reconsideration of servicing and traffic capacities. • As this is an amendment to an existing plan, new geotechnical studies were not required. The Alberta Building Code was amended in 2015 to allow wood frame construction of up to six (6) storeys in height. As the existing geotechnical studies were limited in scope to buildings of up to four (4) storeys, new technical studies assessing the soil conditions as well as noise and vibration studies for larger buildings and deeper foundations may be required prior to Development Permit issuance. Municipal Reserve The design and elements of the public open spaces are expected to be more in keeping with the urban context of this overall development. Past iterations of the South Riel ASP resulted in much of the Municipal Reserve land of the entire ASP being deferred to 6 City Annex. Given the proposed nature of the development of this site, a total of 2.4 ha of land will be developed as park spaces. This accounts for 13% of the subject area and is an appropriate amount to serve the development. The proximity of this development to the significant Lois Hole Provincial Park, and the Alta-Link Utility Right-of-Way that can be used for passive recreation, were also considered in the review of municipal reserve for this area. Cash-in-lieu will be accepted for the remaining 3.2 ha of lands, in accordance with the MDP policy 9.15. Stakeholder Communications or Engagement APPLICANT The applicant, in accordance with City Council Policy: Public Consultation Requirements for Planning and Development Processes, held a public meeting and open house on Tuesday April 15, 2014 at the St. Albert Inn, prior to submitting their application. The meeting was advertised in the St. Albert Gazette on April 5 and 12, 2014. Notices of the meeting were also mailed to landowners located within a 100 metre radius of the area affected by the proposed amendment. City City Council Agenda August 24, 2015 / Page 3 File No.: 10453-0 staff and fourteen (14) community members attended. A transcript was prepared from the meeting (Attachment 3, Transcript April 2014) ADMINISTRATION Following the formal submission, the application and technical reports were circulated to relevant internal and external stakeholders for review. In addition, landowners located within a 100 meter radius of the proposed amendments and those who attended the public meeting were provided with written notification that the application had been made. The comments received were provided in a letter to the applicant. More incremental details are required related to the Traffic Impact Analysis; specifically on level-of-service and intersection function at initial stages which Administration suggests can be dealt with at the development stages. So this allows Council to move forward with this ASP amendment. Comments obtained from the public meeting and the circulation included concerns about the loss of green space, and the relocation of the green space away from the railway. Residents in Heritage Lakes expressed concern that the relocation of the park space will result in a loss of a park buffer between their properties and the proposed medium and high density residential development which will result in a loss of privacy and views. Concerns over sun/shadow impacts, current and projected traffic volumes, and a perceived loss of property values were also submitted. A full summary of the comments can be found in Attachment 4. In accordance with the Municipal Government Act, the Public Hearing, was advertised in the St. Albert Gazette on August 1 and 8, 2015. Notices were mailed to landowners located within 100 meters of the proposed development and to those who attended the public consultation meeting. Financial: • The Fiscal Impact Analysis prepared by Applications Management Consulting Ltd., shows that at full build-out, the development would provide a net gain for the City of St. Albert in tax revenue. A summary of the findings is provided in Attachment 5. a) Legal / Risk: • Detailed development plans, if acceptable to staff, are typically incorporated into development agreements prior to any proposed subdivisions. b) Program or Service: As South Riel develops, there will be incremental impacts to the City and various departments. For example: • Public Works will have more roads, pipes, stormwater management facilities, and parks to maintain. City Council Agenda August 24, 2015 / Page 4 File No.: 10453-0 • Emergency Medical Services will have a new area to service for fire, enforcement, police, and ambulance. • Recreation will have to prepare park master plans and provide recreation amenities. • Engineering will have design plans to review and inspections of infrastructure. • Planning and Development will have subdivision plans and development permits to review. • Safety Codes will have building plans to review and buildings to inspect. • Transit will have to provide service to the neighbourhood. • And there are other areas of the City that will also be impacted by servicing a new neighbourhood. c) Organizational: The approval of the bylaw within this agenda report will have immediate impact on Planning and Engineering as subdivision plans and engineering drawings will have to be reviewed and development agreements negotiated to enable development. Construction ultimately leads to inspections conducted by City staff from various departments and numerous meetings within the City and with the developer/consultants. The challenge is managing this workload with all the other known projects and new neighbourhoods starting to be developed. Alternatives and Implications Considered ALTERNATIVES If Council does not wish to support the recommendation, the following alternatives could be considered: a) Do not approve the proposed amendments to the South Riel Area Structure Plan. The current Area Structure Plan for the residential, institutional, and parks uses, as well as the local roadway pattern, would remain unchanged. IMPLICATIONS • The City has included proposed amendments to the Area Structure Plan that state there is currently very limited sanitary servicing capacity for South Riel, and that plan approval does not guarantee servicing capacity. • Traffic flows in the South Riel area are going to be impacted in the area. Mitigation measures identified in the Traffic Impact Analysis will need to be implemented as development progresses. • A second amendment to this ASP is currently scheduled for September 28, 2015 from a different proponent. As two amendments to the same ASP cannot run concurrently, a decision on this amendment should be completed prior to the second amendment coming forward. City Council Agenda August 24, 2015 / Page 5 File No.: 10453-0 Strategic Connections a) Council’s Strategic Outcomes and Priorities • CULTIVATE ECONOMIC PROSPERITY: A diversified, robust, and resilient economic foundation to support growth and community service delivery. • CULTIVATE A HISTORIC, CREATIVE, AND ACTIVE COMMUNITY: A vibrant and involved community with a variety of culture, recreation, and heritage opportunities. • CULTIVATE SUSTAINABLE INFRASTRUCTURE AND SERVICES: A growing community that has balanced development and management of civic facilities, transportation networks and related services. • CULTIVATE A SAFE, HEALTHY AND INCLUSIVE COMMUNITY: A community that provides opportunities for everyone to realize their potential in a thinking, caring and connected way. b) Long Term Plans • Municipal Development Plan (MDP) Bylaw 15/2007 as amended. • South Riel Area Structure Plan Bylaw 21/2007 as amended. c) Corporate Objectives • Exercise strong fiscal management. • Ensure our customers are very satisfied. d) Council Policies • City Council Policy: Public Consultation requirements for Planning and Development processes: C-P&E-01 e) Other Plans or Initiatives • Not Applicable Attachments 1. Bylaw 27/2015, South Riel Area Structure Plan-6 City Annex. 2. Schedule A to Bylaw 27/2015, South Riel Area Structure Plan-6 City Annex. 3. Transcript, Public Consultation Session, April 2014. 4. Circulation Comments. 5. Fiscal Impact Analysis Summary Originating Department(s): Planning Author(s): Karen Oxley, Planner General Manager Approval: Gilles Prefontaine, Chief Community Development Officer City Manager Signature: Date: City Council Agenda August 24, 2015 / Page 6 File No.: 10453-0 ATTACHMENT 1 CITY OF ST. ALBERT BYLAW 27/2015 Being a bylaw to establish the South Riel Area Structure Plan NOW THEREFORE the Municipal Council of the City of St. Albert pursuant to the provisions of the Municipal Government Act hereby ENACTS AS FOLLOWS: 1. This Bylaw may be cited as “South Riel Area Structure Plan Bylaw”. 2. The South Riel Area Structure Plan Bylaw, attached hereto as Schedule A, is hereby adopted. 3. Bylaw 21/2007 is repealed by this bylaw. READ a first time this day of , 2015. READ a second time this day of , 2015. READ a third and final time this day of , 2015. SIGNED AND PASSED THIS day of , 2015. __________________________ MAYOR ___________________________ CHIEF LEGISLATIVE OFFICER BYLAW 27/2015(Page 1) ATTACHMENT 2 SOUTH RIEL AREA STRUCTURE PLAN Table of Contents TABLE OF CONTENTS Page PART 1: Introduction .............................................................................. 1 Section 1.1. Purpose ................................................................. 1 Section 1.2. Authority of the Plan .............................................. 1 Section 1.3. Timeframe of the Plan ........................................... 2 Section 1.4. Interpretation of the Plan ....................................... 2 Section 1.4.1. Map Interpretation ......................................... 2 Section 1.4.2. Application of the Plan .................................. 3 Section 1.5. Objectives ............................................................. 3 Section 1.6. Property Ownership Patterns ................................ 4 Section 1.7. Planning Context ................................................... 4 Section 1.7.1. Municipal Development Plan ........................ 4 Section 1.7.2. Existing Area Structure Plan ......................... 4 Section 1.7.3. Land Use Bylaw ............................................ 5 Section 1.7.4. Urban Village Planning and Design Guidelines ............................................................................. 5 Section 1.7.5 Transportation Master Plan (TMP) ................ 5 Section 1.7.6 Utility Master Plan (UMP) .............................. 6 PART 2: Site Analysis .......................................................................... 7 Section 2.1. Natural and Cultural Features ............................... 7 Section 2.1.1. Topography and Drainage ............................ 7 Section 2.1.2. Relation to Designated Flood Line ................ 7 Section 2.1.3. Geotechnical Conditions. .............................. 7 Section 2.1.4. Vegetation Resources ................................... 8 Section 2.1.5. Natural Site Assessment ............................... 8 Section 2.1.6. Environmental Site Assessment ................... 8 Section 2.1.7. Heritage Resources ...................................... 9 Section 2.2. Current Development Patterns .............................. 9 PART 3: Land Use Concept ............................................................... 10 Section 3.1. Future Land Use Map ......................................... 10 Section 3.2. Land Use Concept: Major Development Patterns 10 Section 3.3. Residential Land Use .......................................... 10 Section 3.3.1. Medium Density Residential ....................... 11 SCHEDULE “A” TO BYLAW 27/2015 (Page i) SOUTH RIEL AREA STRUCTURE PLAN Table of Contents Section 3.3.2. Medium to High Density Residential ........... 11 Section 3.3.3 Mixed-Use Commercial & Residential ......... 11 Section 3.4. Commercial Land Use ......................................... 12 Section 3.5. Industrial/Commercial (Light Industrial) Land Use 12 Section 3.6. Parks and Open Space ....................................... 12 Section 3.6.1. Trails ........................................................... 13 Section 3.6.2. Urban Park Sites ......................................... 14 Section 3.6.3. Stormwater Management Facilities ............. 14 Section 3.6.4. School Site .................................................. 15 Table 3-1 Student Population Projection ........................... 15 Section 3.7. Development Statistics ........................................ 15 Table 3-2 Development Statistics ....................................... 17 PART 4: Transportation ..................................................................... 18 Section 4.1. Arterial Road Network ......................................... 18 Section 4.2. Collector and Local Road Network ...................... 19 Section 4.3. Transit ................................................................. 19 Section 4.4. Rail ...................................................................... 19 Section 4.5. Pedestrian/Bicycle Links ..................................... 20 Section 4.6. Noise Attenuation ................................................ 20 Section 4.7. Off-Site-Levies .................................................... 20 Section 4.8. Capital Recreation Contribution .......................... 20 Section 4.9. Crime Prevention Through Environmental Design (CPTED) .................................................................................. 21 Section 4.10. Ray Gibbon Drive ............................................... 21 PART 5: Utility Services .................................................................... 22 Section 5.1. Water Supply and Distribution ............................. 22 Section 5.2. Wastewater Collection System (Sanitary) ........... 22 Section 5.3. Stormwater Management .................................... 22 Section 5.4. Shallow Utilities ................................................... 23 Section 5.5 Public Utility Lots (PULs) ...................................... 23 PART 6: Implementation .................................................................... 24 Section 6.1. Development Staging .......................................... 24 Section 6.2. Redistricting and Subdivision .............................. 24 Section 6.3 Building Inspections ............................................ 24 SCHEDULE “A” TO BYLAW 27/2015 (Page ii) SOUTH RIEL AREA STRUCTURE PLAN Table of Contents LIST OF FIGURES Page Figure 1 Location Map ...................................................................... 25 Figure 2 Future Land Use ................................................................. 26 Figure 3 Transportation .................................................................... 27 Figure 4 Water Servicing .................................................................. 28 Figure 5 Wastewater Collection System (Sanitary) ........................... 29 Figure 6 Stormwater Management ................................................... 30 Figure 7 Legal Descriptions .............................................................. 31 Figure 8 Municipal Reserve .............................................................. 32 Figure 9 Constraints ......................................................................... 33 Figure 10 Staging ............................................................................... 34 Figure 11 Aerial Map .......................................................................... 35 SCHEDULE “A” TO BYLAW 27/2015 (Page iii)