The Regional Municipality of Wood Buffalo Municipal Development Plan Bylaw 00/005 Our Vision We will sustain a dynamic and healthy region through strengthening, preserving and promoting the abundant physical, historical, cultural and human resources of the Regional Municipality of Wood Buffalo.
Municipal Development Plan Advisory Committee
TABLE OF CONTENTS Part 1: How did we get to where we are now?... 1 Introduction... 1 Purpose of the Plan... 1 Our Mission... 2 Plan Development... 2 Consultation Process... 2 Authority of the Plan... 3 Planning Context... 5 Part 2: Where are we now?... 7 Population... 7 Population Distribution... 9 City Centred Region... 9 Land Ownership... 9 Part 3: Where are we going over the next several years?... 10 Oil Sands Expansion... 10 Population Growth... 10 Part 4: Where do we want to be?... 12 Guiding Principles... 12 Our Vision... 12 Part 5: How do we get there from here?... 13 Municipal Responsibilities... 13 1. ECONOMIC DEVELOPMENT... 14 Economic Diversification... 14 Utilization of Local Expertise... 15 Attractive Business Environment... 16 2. GROWTH MANAGEMENT... 17 General Land Development... 17 Cost Effective, Sustainable & Efficient Development Practices... 17 Allocation of Municipal & Environmental Reserves... 19 Preservation of Agricultural Lands... 20 Commercial Development... 21
Commercial Development Standards... 21 Residential Development... 23 Housing Affordability & Supply... 23 Neighbourhood Design... 24 Industrial Development... 26 Location of Industrial Lands... 26 Development on Crown Land... 27 Coordination with Provincial Government Agencies& Regulators. 27 Regional Municipal Growth Strategy... 29 Development Policy Areas... 29 Development Strategy for the Urban Service Area... 34 Development Strategy for the Rural Service Areas... 36 The Unique Development Needs of the Hamlets... 36 Hamlet of Anzac Provisions... 38 Hamlet of Conklin Provisions... 41 Hamlet of Gregoire Lake Estates Provisions... 44 Hamlet of Janvier Provisions... 45 Hamlet of Fort Chipewyan Provisions... 47 Hamlet of Saprae Creek Provisions... 49 Hamlet of Fort MacKay Provisions... 51 Fort Fitzgerald Provisions... 51 Mariana Lake Provisions... 52 Highway 63 North... 52 Intermunicipal Planning... 52 3. SERVICE TO THE COMMUNITY... 53 Park, Recreation & Cultural Facilities & Programs... 53 Use of the Snye... 55 Provision of Camping Facilities & Wilderness Recreation Sites.. 55 Provision of Community and Support Services... 56 Emergency and Protective Services... 56 4. MUNICIPAL INFRASTRUCTURE... 58 Engineering Standards... 58 Regional Transportation... 59 Transportation in the Urban Service Area... 61 Public Transit... 63 Air Transportation... 63 Water and Sewer Utilities... 64 Solid Waste Management... 65
Drainage... 66 Public Utilities... 67 Flood Abatement... 67
5. ENVIRONMENTAL MANAGEMENT... 69 The Pace & Environmental Impact of Oil Sands Development... 69 Environmental Leadership... 70 Environmental Impact of Roadway & Infrastructure Development. 71 Preservation of Natural Wildlife & Fish Habitat... 72 Preservation & Conservation of Environmentally Sensitive Areas. 74 Maintaining Air Quality... 76 Maintaining Water Quality... 77 Environmental Impact from Increased Recreational Development. 78 Remediation of Contaminated Sites... 79 Preservation of Heritage Resources... 79 Part 6:How do we carry out the Plan?... 81 Implementation... 81 Enforcement... 84 Amendment... 84 Acknowledgments... 85 Glossary... 86 Appendices... 93
Part 1: How did we get to where we are now? Introduction The Regional Municipality of Wood Buffalo is a vast, culturally diverse, dynamic community. Located in northeast Alberta, it is one of the largest municipalities on the continent, encompassing an area of 67,164 square kilometers. The Municipality stretches from the Alberta/Northwest Territories border in the north to Mariana Lake, 435 km to the south. The eastern edge meets the Saskatchewan border and the western portion reaches the boundary of Wood Buffalo National Park. Size alone presents both interesting challenges and many opportunities for its almost 43,000 residents. See Map 1. Purpose of the Plan The purpose of the Municipal Development Plan is to satisfy the needs of present and future residents of the Regional Municipality of Wood Buffalo. The Plan is being developed to set out a clear, collective vision for the region, to respond to change and to manage growth. Six fundamental questions should be answered during the development of a Municipal Development Plan: How did we get to where we are now? Where are we now? Where are we going over the next several years? Where do we want to be? How do we get from here to there? How do we carry out the Plan? The Plan s development involves decision-makers, planners, and the public, working together to identify the hopes of the future and the realities of the present. It will determine an appropriate and flexible, direction to achieve that future vision. There is no way to predict or prepare for any eventuality. Therefore, the recommendations presented in the Plan are to be followed within the fiscal resources and capability of the Municipality at the time. The Municipal Development Plan is a living document evolving over time, but maintaining the direction and goals established here. Municipal Development Plan Bylaw 00/005 - February 8 th, 2000 1
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The Municipal Development Plan provides a blueprint to achieve the desired direction for managing growth, economic development, community services, infrastructure delivery, and environmental management. This document contains policies guiding development for the next five (5) years while considering the impact of development over the next twenty (20) years. The success of the Plan will depend on the degree of commitment decision-makers and the public are prepared to make in following the direction and strategies put forward. Our Mission The Municipal Development Plan is intended to support the Plan s collective vision of the Regional Municipality of Wood Buffalo. This Plan provides a strategy to guide, integrate, coordinate and manage future growth and development in order to foster a dynamic and healthy region. Plan Development In the preparation of the first Municipal Development Plan for the Regional Municipality of Wood Buffalo, Municipal Council recognized that active participation from residents was both desirable and necessary. To this end, an Advisory Committee consisting of local residents representing diverse interests throughout the Municipality was formed. With the assistance of a facilitator, the Municipal Development Plan Advisory Committee met over a period of one year to review the strategies put forward and ensure that a broad crosssection of issues and perspectives from a range of organizations, groups and individuals were represented and that sufficient public consultation was undertaken. Consultation Process The general approach used for the creation of the Municipal Development Plan included meetings with key stakeholders, municipal administration, industry, business and the community. General information sessions and open houses were conducted, and media campaigns detailing progress and providing information were commissioned, ensuring that the direction put forward is consistent with the desired vision. Open Houses allowed further public input before the draft document was delivered in its final form to Council for consideration Municipal Development Plan Bylaw 00/005 - February 8 th, 2000 3
The development of the Municipal Development Plan involved the following key activities: MDP Advisory Committee Input Key Stakeholder Interviews Rural Survey Focus Group Sessions Trade Show Display Public Discussion Forums; and Open Houses Comments from these sessions are summarized in the appendices. Authority of the Plan The Municipal Development Plan for the Regional Municipality of Wood Buffalo has been prepared under the legislative framework of the Municipal Government Act. This requires that municipalities with a population of 3500 or more adopt, by bylaw, a Municipal Development Plan. The Municipal Government Act (Section 632) details the mandatory and optional content requirements of a Municipal Development Plan. The Municipal Development Plan is the primary land use policy document at the top of the hierarchy of statutory planning documents which influence and direct development within the boundaries of the Regional Municipality of Wood Buffalo. It is intended to provide a general framework for managing all Municipal functions, the development of residential, commercial and industrial lands, parks and open space, community services and infrastructure. The policies adopted in the Municipal Development Plan set the stage for more detailed and specific planning and land use control documents described as follows: See Figure 1. Area Structure Plan (ASP) An Area Structure Plan (ASP) is an intermediate planning document that is more detailed than the Municipal Development Plan but less specific than the Land Use Bylaw or Subdivision Plan. While still considered a long-range planning document, the ASP covers only a small portion of the Municipality, and may include several subdivisions or neighbourhoods. The ASP is designed to address more specific development issues for a particular area. Municipal Development Plan Bylaw 00/005 - February 8 th, 2000 4
The required contents for an ASP are described in Section 633 of the Municipal Government Act. An ASP must conform to the direction given in the Municipal Development Plan, specifically as it affects that area and must be adopted by bylaw by Municipal Council. The ASP describes the sequence of development for a proposed area, the proposed land uses and population densities, and the proposed general location of transportation routes, utilities and public open space. By preparing this type of plan, the Municipality and a developer can reach agreement on fundamental design and location of land uses for the area prior to the preparation and submission of more detailed subdivision plans. See Maps 2 and 2A Area Redevelopment Plan (ARP) Like an ASP, an Area Redevelopment Plan (ARP) is an intermediate planning document used to assist in the effective long range planning and redevelopment of developed areas within the municipality. The ARP may designate the affected area for: Preservation or improvement of land and buildings, Rehabilitation of buildings Building removal Reconstruction or replacement of buildings Relocation and rehabilitation of services and utilities The ARP must also follow the direction given in the MDP as it relates to the redevelopment area. The Municipal Government Act, Section 635, describes the required contents of an ARP and must be adopted by Municipal Council through the adoption of a bylaw. Outline Plan An Outline Plan is an intermediate planning document, required in specific circumstance, in order to bridge the gap between a large scale ASP and an individual plan of subdivision. Land Use Bylaw The Municipal Government Act requires that a Land Use Bylaw be passed by every Municipality, to regulate, prohibit and control the use of land and buildings within municipal boundaries. Section 640 of the Municipal Government Act details what must be contained in a Land Use Bylaw. Municipal Development Plan Bylaw 00/005 - February 8 th, 2000 5
Unlike the MDP, ASPs and ARPs, the Land Use Bylaw is not forward looking, but regulates current development and land use. The Land Use Bylaw divides the Municipality into a number of land use districts, within which permitted and discretionary uses for land and buildings are designated. The Bylaw may also establish general provisions for a specific district that pertain to such matters as: Subdivision Plans Minimum and maximum lot area Floor areas of buildings Building setbacks from property lines Location of fences Off street parking provisions Population density Landscaping requirements Design and appearance of buildings A Subdivision Plan is a much more detailed planning document. Once a developer has secured property for development (or redevelopment), he must submit a Subdivision Plan. This plan specifically details the location and type of land uses, development phasing and the precise location of transportation routes, utilities and public open space. The Subdivision Plan must be consistent with the development direction put forward in the MDP, and relevant ASPs or ARPs. The Subdivision Plan must also be consistent with Provincial Subdivision and Development Regulation of the Municipal Government Act and the provisions of the Land Use Bylaw regarding minimum lot size, minimum lot frontage, etc. Subdivision proposals creating fifteen (15) lots or more must be approved by Municipal Council. Planning Context The Regional Municipality of Wood Buffalo was established on April 1, 1995 when the City of Fort McMurray and Improvement District No. 143 amalgamated. This is a relatively brief period, given over two hundred years of settlement activity in the region. The Regional Municipality of Wood Buffalo includes the communities of Fort McMurray, Anzac, Conklin, Fort Chipewyan, Fort Fitzgerald, Fort McKay, Gregoire Lake Estates, Janvier, Mariana Lake. Saprae Creek Estates, and a large rural area. See Map 3. This area has always been both an important transportation link and a source of natural resources. Originally settled to take advantage of the lucrative fur trading market, other plentiful natural resources were not long ignored. Soon salt mining was added to fur trading, fishing, and forestry enterprises. Interest in the oil sands began early and by the Municipal Development Plan Bylaw 00/005 - February 8 th, 2000 6
1930's, a process to extract oil from the enormous Athabasca oil sands deposit was developed. Thus began the region s relationship with the oil industry although it was not until the 1960s that the Oil Sands become the dominant economic activity in the region. More recently, natural gas exploration has also impacted the economy of the region. The majority of development within the Regional Municipality of Wood Buffalo has occurred in and around Fort McMurray and relates primarily to the development of the Suncor and Syncrude Oil Sands plants. Recent logging and gas activities, especially around Conklin and Janvier have resulted in more industry there. Due to this heavy reliance on resource extraction, the region has been subject to the economic cycles of these industries. Municipal Development Plan Bylaw 00/005 - February 8 th, 2000 7
Part 2: Where are we now? Population The Regional Municipality of Wood Buffalo conducted a Municipal census on April 1, 1999. The total population of the Regional Municipality of Wood Buffalo was 42,871. The table below shows that the Municipality has a widely dispersed population, although the majority is concentrated in Fort McMurray. Community Population % of total Anzac 397 0.92 Conklin 215 0.50 Draper 47 0.11 Fort Chipewyan 1,020 2.38 Fort Fitzgerald 24 0.06 Fort MacKay 262* 0.61 Fort McMurray 36,452 85.03 Gregoire Lake Estates 163 0.38 Janvier 207 0.48 Mariana Lakes 7 0.02 Saprae Creek Estates 509 1.18 Shadow Population 3,568 8.32 Total 42,871 99.99** **Does not equal 100% due to rounding *This population figure has been disputed by the Fort McKay First Nation. They estimate a population closer to 396. Municipal Development Plan Bylaw 00/005 - February 8 th, 2000 8
The 1999 census also analyzed the population by age category. Age Cohort Fort McMurray 1989 Wood Buffalo 1999 Alberta (1996 Census) Canada (1996 Census) 0-4 9.9 7.7 7.2 6.6 5-9 10.2 8.9 7.8 6.9 10-14 9.6 9.1 7.8 6.9 15-19 8.5 8.9 7.1 6.8 20-24 8.2 7.8 6.9 6.6 25-29 10.9 8.3 7.4 7.0 30-34 12.5 8.9 8.8 8.6 35-39 10.5 10.3 9.5 8.8 40-44 8.2 10.4 8.3 8.0 45-49 4.9 8.2 6.9 7.3 50-54 3.1 6.1 5.0 5.6 55-59 1.4 3.0 4.0 4.5 60-64 0.8 1.4 3.6 4.1 65-69 0.3 0.8 3.2 3.8 70-74 0.2 0.5 2.6 3.3 75-79 0.2 0.2 1.9 2.4 80-84 0.07 0.17 1.2 1.6 85+ 0.02 0.11 1.0 1.2 The Municipality has a higher percentage of people in all age categories up to 55 years old than either Canada or the Province of Alberta. The Municipality, therefore, has a higher than average percentage of the population in its working years. The trend shows a greater percentage of residents moving into the older age groups. The need exists therefore, to ensure that services and facilities are adaptable over time in order to accommodate this segment of the population as it ages. Municipal Development Plan Bylaw 00/005 - February 8 th, 2000 9
Additionally, determining the number and growth of the population of school aged children is important to the school districts because they must be accommodated within the school systems operating in the Municipality. Population Distribution Although 85 percent of the population resides in the Urban Service Area of Fort McMurray, the hamlets are also rural population centres. These pockets of residential development are widely distributed and thinly populated and present significant challenges with regard to governance and service provision. See Map 3 City Centred Region The Regional Municipality of Wood Buffalo is a city centered region comprised of Fort McMurray, several hamlets and a vast unpopulated area. The hamlets are connected to each other by road, rail or water transportation routes. The region is also served by fixed wing and rotary aircraft. Although the region contains several airstrips, float planes remain a significant mode of transportation, especially for air traffic traveling to and from the north. A rail system extends from the southern limit of the Municipality to Lynton Siding near Fort McMurray. Barge service on the Athabasca River provides freight to Fort Chipewyan and points further north. Land Ownership The Regional Municipality of Wood Buffalo is unusual in that the majority of the rural land, and the land surrounding the Urban Service Area of Fort McMurray, is owned by the Province of Alberta or is non-patent land, rather than being privately owned. Consequently, the Province has significant influence on the growth and development of the Municipality by controlling the availability of land for development. Refer to Map 4. In addition, 26 Indian Reserves are situated within the municipal boundaries and development on these lands is controlled by the Aboriginal Bands and the Federal Department of Indian Affairs. Refer to Map 4a. The Municipality is adversely affected by this land ownership pattern because it cannot levy property taxes on land owned by a higher level of government. Grants in-lieu of property taxes that Federal and Provincial governments distribute to municipalities are significantly less than taxes the Municipality would collect from a private property owner. Additionally, this land ownership pattern makes it difficult for the Regional Municipality of Municipal Development Plan Bylaw 00/005 - February 8 th, 2000 10
Wood Buffalo to have control over or influence development which occurs on Crown or Reserve lands. Municipal Development Plan Bylaw 00/005 - February 8 th, 2000 11
Part 3: Where are we going over the next several years? Oil Sands Expansion Oil sands development will continue to be the dominant economic driver and employment generator for the Municipality. The oil sands industry in the region has been characterized by incremental expansion as new technology increases the production efficiency of the plants. It is projected that the industry will continue to undertake plant expansions and open new mines to further increase production. Over the life of this Plan several additional oil sands projects may be developed, either as expansions to existing projects or as new projects. The development of economical and efficient in-situ oil sands extraction processes are also being investigated in the region. Commercial use of such processes will continue to contribute to growth and development within the Municipality. Population Growth The Regional Infrastructure Working Group (RIWG), a group consisting of major oil companies and the Municipality, project that the population of the Fort McMurray Urban Service Area will exceed 50,000 by 2006. This increase will be in response to the ongoing expansion of Suncor and Syncrude s oil sands facilities and the development of additional oil sands projects. The population projection includes the multiplier effect on the local service economy to provide goods and services to industry and the community. This is in addition to the existing population of approximately 3,000 residents who live in the rural area. Projected Population 2001-2021(Fort McMurray only - RIWG) 1996 2001 2006 2011 2016 2021 Urban Population 34,062 43,344 50,164 51,974 51,701 52,077 Growth Rate 4.9% 3.0% 0.7% -0.1% 0.1% Municipal Development Plan Bylaw 00/005 - February 8 th, 2000 12
Once the development of new oil sands facilities and projects near completion and the temporary workers leave, the rate of population growth will change to an extended period of slow and steady growth. The rate of growth is expected to slow in 2001 from 4.9% to 3.0%, and to 0.7% by 2011. The 1999 municipal census also measured the Shadow Population (the number of temporary residents living within the Regional Municipality of Wood Buffalo, either within a settlement or in a work camp). It is expected that during the upcoming construction phase of the oil sands industry expansion, there will continue to be several thousand temporary residents living in camps within the Municipality. This will impact on the services that the Municipality will be required to provide. Municipal Development Plan Bylaw 00/005 - February 8 th, 2000 13
Part 4: Where do we want to be? Guiding Principles Consultation during the development of this Plan revealed that the following principles were important to the residents of the Municipality. A Vibrant Economy Superior Quality of Life Planned Strategic Development Proactive Responsible Management A Healthy and Sustainable Environment Collective Decision Making Open Communication The Municipality is but a single partner in determining the future direction for the region. The community must work together with the Municipality to achieve the vision identified in this Plan. The Municipal Development Plan is written with the following collective vision for the Regional Municipality of Wood Buffalo: Our Vision We will sustain a dynamic and healthy region through strengthening, preserving and promoting the abundant physical, historical, cultural and human resources of the Regional Municipality of Wood Buffalo. The strategies put forward in this plan are intended to assist policy makers and regulatory bodies to ensure that future development and planning proposals meet the expectations of the citizens of the region. This Plan is intended to be a guide for Municipal Council, Administration, Committees of Council, the Wood Buffalo Planning Commission, the Subdivision and Development Appeal Board, Provincial and Federal Government agencies, as well as, industry, business and individuals. The ideals stated in the vision statement, as well as the guiding principles should be referred to when assessing the merits of future development proposals. Municipal Development Plan Bylaw 00/005 - February 8 th, 2000 14
Part 5: How do we get there from here? Municipal Responsibilities The Municipal Development Plan Advisory Committee identified five main areas of Municipal responsibility and influence. It is recognized that these areas are interdependent and of equal importance. The Municipal Development Plan is to provide specific direction in each of five areas (see Figure 2), these are: Economic Development Growth Management Services to the Community Municipal Infrastructure Environmental Management Issues were identified by looking at emerging trends, through significant stakeholder and public consultation and verification of issues identified in former General Municipal Plans for the City of Fort McMurray, other policy documents and technical reports. Consultants were hired to identify issues and make recommendations to address concerns and deficiencies in the areas of Environmental Management and Municipal Infrastructure. Executive summaries of the consultants reports can be found in the appendices. Municipal Development Plan Bylaw 00/005 - February 8 th, 2000 15
1. ECONOMIC DEVELOPMENT Goal: To expand and diversify the economy to attract investment, create employment, and broaden the tax base. Economic Development involves the participation of the Municipality in creating a positive climate for business throughout the region. This includes support for economic diversification, tourism, using local suppliers and services, and providing cost effective municipal services, implementing effective process and maintaining taxes at reasonable levels. It also involves working with large employers to garner support for diversification and to encourage suppliers to locate in the Regional Municipality of Wood Buffalo. Issue: Economic Diversification The reliance on resource industries, especially the oil sands mining industry means that the Regional Municipality of Wood Buffalo is subject to the volatility of the marketplace. The attraction of new business and industry will broaden the economy and lessen our reliance on resource development and our vulnerability to the cyclical nature of primary resource industries. Our Direction: 2.1 Identify, support and promote opportunities for tourism throughout the Municipality by: 2.1.1 Facilitating and supporting the efforts of heritage groups (historical societies, Aboriginal groups and museums) in preserving and celebrating the Regional Municipality of Wood Buffalo s heritage for tourists and local residents; 2.1.2 Continuing to support and work with the local visitors bureau in attracting tourists to the region; 2.1.3 Promoting private sector development of recreation and tourism opportunities, with emphasis on wilderness adventure experiences; 2.1.4 Promoting tourism opportunities related to current and historical oil sands operation; 2.1.5 Promoting a range of environmentally sensitive recreation and tourism opportunities focusing on lakes and rivers; Municipal Development Plan Bylaw 00/005 - February 8 th, 2000 16
2.1.6 Encouraging development of tourism facilities and services to meet demands for leisure and business related tourism opportunities; 2.1.7 Supporting the maintenance and expansion, where appropriate, of government or privately owned recreation and tourism facilities such as campsites, day-use sites, viewpoints and boat launches; and, 2.1.8 Supporting Aboriginal tourism initiatives to highlight the cultural diversity of the region and provide economic benefit to Aboriginal communities. 2.1.9 Encouraging appropriate development of hunting and fishing related tourism activities. Issue: Utilization of Local Expertise The local economy is characterized by industries that require a highly skilled workforce. Much of the technological innovation utilized today by the Oil Sands industry in particular, was developed locally, thus demonstrating the high skill level available within the Municipality. Our Direction: 2.2 The Municipality supports continued upgrading of skills by residents in order to reduce the reliance on a transient labour force by: 2.2.1 Encouraging the development of local expertise in technologies required by local industry; 2.2.2 Supporting Keyano College and other local education and training programs; 2.2.3 Cooperating with Metis and First Nations people to encourage and support Aboriginal business and training opportunities;and 2.2.4 Promoting and implementing local hiring practices and purchasing of goods and services when appropriate. Municipal Development Plan Bylaw 00/005 - February 8 th, 2000 17
Issue: Attractive Business Environment Maintaining a positive business climate is essential to creating a dynamic economy that allows local businesses to thrive while attracting new business and industry to the region. Our Direction: 2.3 Assist and facilitate business development by: 2.3.1 Serving as a resource for business; 2.3.2 Working collectively with the Fort McMurray Business Revitalization Zone, the Business Development Centre and the Chamber of Commerce; 2.3.3 Supporting industrial and commercial uses that provide economic benefit and long term viability of the hamlets; and 2.3.4 Preserving and supporting traditional lifestyles (trapping, fishing and hunting). 2.4 Provide Municipal services in an efficient and cost effective manner to create a competitive business environment by: 2.4.1 Maintaining reasonable taxation rates while providing efficient, quality services; 2.4.2 Maintaining competitive business licensing fees; 2.4.3 Establishing fees for service on a cost recovery basis, whenever possible; 2.4.4 Continuing to budget for Municipal expenses and revenues using a three year budgeting and strategic planning process; and, 2.4.5 Maintaining capital reserves consistent with provincial requirements and municipal needs. 2.5 Facilitate business opportunities that are not dependent on, or supplementary to, primary resource industries. 2.6 Support the establishment of Home Businesses and Home Occupations, where appropriate. Municipal Development Plan Bylaw 00/005 - February 8 th, 2000 18
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2. GROWTH MANAGEMENT Goal: To ensure efficient, attractive and sustainable development that addresses the diverse needs of the population Growth management involves managing the impacts of population and economic growth on the region, recognizing that growth in the municipality has historically been characterized by cycles of rapid growth and periods of stability. Development is to be managed to minimize harm to stable communities, preserve cultural identity, use land and resources wisely and prevent inappropriate development or expenditures. General Land Development Issue: Cost Effective, Sustainable and Efficient Development Practices: The Municipality supports efficient land development that is compatible with existing developed areas. This is necessary to minimize the impacts on the environment and to use the existing municipal infrastructure as efficiently as possible. Our Direction 3.1 Ensure, through cooperation and consultation with business and industry, an adequate and appropriate supply of land zoned for residential, commercial and industrial uses, to accommodate the expected population and economic growth over the life of this Plan. 3.2 Ensure growth is focused in appropriate areas to minimize municipal investment and provision of services. 3.3 Prepare ASPs or ARPs for those areas within the Urban Service Area that currently do not have a plan. 3.4 Minimize tax increases by implementing off-site development levies to support the maintenance, improvement or provision of off-site municipal infrastructure that the subdivision or development will utilize. Work with developers to establish appropriate off-site levy payment scheduling. 3.5 Support environmentally friendly development patterns that use land efficiently. 3.6 Accommodate and support pedestrian and alternative forms of transportation with less reliance on automobiles. Municipal Development Plan Bylaw 00/005 - February 8 th, 2000 20
3.7 Regulate subdivision and other development to minimize the impact on the natural environment and risks from natural hazards, such as floods and unstable slopes. Refer to Environmental Guidelines for Review of Subdivisions in Alberta, 1998 3.8 Inform and work in cooperation with First Nations and Aboriginal communities adjacent to proposed municipal developments. 3.9 Require that new subdivisions adhere to the Park Development Standards as approved by Municipal Council. 3.10 Require that new subdivisions be staged to utilize existing infrastructure capacity or a logical and economical extension of the existing infrastructure. 3.11 Implement a mechanism, such as a financial bond, to ensure that areas cleared for subdivisions are able to be reclaimed if the subdivision does not proceed. 3.12 Support in-fill development in existing subdivisions. 3.13 Require new subdivisions to respect The Woodland/Urban Interface Plan for Fort McMurray(1998) for forest fire abatement and employ forest fire defense strategies for rural developments. 3.14 Work with Provincial authorities ensuring that suitable lands near urban settlements remain available for future expansion requirements. 3.15 Ensure that future outlying residential, industrial and commercial development is situated in a manner that minimizes major municipal servicing costs and /or reduces conflicts with adjacent land uses. 3.16 Ensure compatibility with the Provincial Land Use policies, the Land Use Bylaw and any other Statutory Plans and Bylaws. 3.17 Ensure compliance with the Alberta Building Code and local Bylaws related to planning and development. 3.18 Establish a formal consultation process with residents regarding proposed developments and improvements. 3.19 Ensure that subdivisions adhere to the Engineering Servicing Standards adopted by Council. Municipal Development Plan Bylaw 00/005 - February 8 th, 2000 21
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Issue: Allocation of Municipal and Environmental Reserve To maintain a high quality of life within the Municipality, an adequate supply of land must be set aside as Municipal Reserve to develop school sites, public facilities and recreational park space. In addition, environmentally sensitive areas must be set aside as Environmental Reserve to ensure their preservation. Areas that cannot be developed because of slope instability, geotechnical characteristics or flood risk will also be set aside as Environmental Reserve in accordance with the Provisions of the MGA and Provincial Subdivision and Development Regulations. Our Direction: 3.20 In order to provide adequate open space for parks, schools, trails and playgrounds take Municipal Reserve in accordance with the Park Development Standards, under the authority of Section 666 of the Municipal Government Act. It is recommended that cash in lieu be taken where sufficient park space already exists or where park space is not required. i.e. Industrial subdivisions. 3.21 Require an additional 5 percent Municipal Reserve dedication where the anticipated dwelling unit density will be in excess of 30 units per hectare, under the authority of Section 668 of the Municipal Government Act. 3.22 Require that all Municipal Reserve lands be taken be of acceptable size and configuration to provide a reasonable opportunity for public use by: 3.22.1 implementing the Regional Municipality of Wood Buffalo Park Development Standards; 3.22.2 Consulting with Community Services and potential user groups; 3.22.3 Establishing a formal agreement with local School Districts regarding the allocation requirements and location of future school lands as well as ownership and operating guidelines of these lands; and, 3.22.4 Consulting with Parks and Recreation to assist with the implementation of the Urban Parks Master Plan within the Urban Service Area. 3.23 Establish Environmental Reserve, lands where it can be defined for that purpose in Section 664 of the Municipal Government Act. In some Municipal Development Plan Bylaw 00/005 - February 8 th, 2000 23
circumstances, the Municipality may consider using an environmental reserve easement in place of Environmental Reserve denotation. 3.24 Prevent encroachments onto Environmental Reserves, Municipal Reserves and Public Utility Lots. Issue: Preservation of Agricultural Lands A very small amount of productive agricultural land exists within the Regional Municipality of Wood Buffalo. As a limited resource, development in this agricultural area needs to be properly protected and managed. Our Direction: 3.25 Where possible preserve the limited amount of productive agricultural land, determined by soil capability or where existing agricultural uses are being undertaken, and avoid its fragmentation through subdivision. 3.26 Encourage intensive agricultural pursuits such as green houses or tree farms in these limited agricultural areas. 3.27 Limit residential development on agricultural lands in order preserve the agricultural integrity of the land. Municipal Development Plan Bylaw 00/005 - February 8 th, 2000 24
Commercial Development As a dynamic and growing Municipality, we must support the development of a variety of commercial businesses to provide goods and services, and employment opportunities for Wood Buffalo residents. Issue: Commercial Development Standards Commercial districts must be planned and developed so they are efficient, attractive and complement surrounding development, while providing necessary goods and services to the community. Our Direction: 3.28 Enhance the appearance and viability of the commercial core of Fort McMurray by undertaking downtown revitalization strategies including implementation of urban design standards. 3.29 Recognize and support continued development of the Lower Townsite as the business, entertainment and commercial centre of Fort McMurray. 3.30 Undertake an Area Redevelopment Plan for the Lower Townsite and Prairie Area of Fort McMurray. The ARP will include: 3.30.1 Public participation and consultation; 3.30.2 Transportation strategies including: traffic circulation, and noise reduction requirements; 3.30.3 Parking strategies; 3.30.4 Public transportation requirements; 3.30.5 Redevelopment strategies and direction; 3.30.6 Ensuring infrastructure adequacy; 3.30.7 The provision of recreation and open space; 3.30.8 Implementation of redevelopment levies where appropriate; 3.30.9 Architectural controls where appropriate; Municipal Development Plan Bylaw 00/005 - February 8 th, 2000 25
3.30.10 Establishment of neighbourhood population density levels and housing types; 3.30.11 School and school population requirements; 3.30.12 The identification and protection of environmentally sensitive areas; and, 3.30.13 A detailed statement addressing compliance with the Municipal Development Plan; 3.31 Support development in the Prairie area of the Urban Service Area of Fort McMurray only if the development can satisfy flood abatement regulations outlined in the Land Use Bylaw. 3.32 Provide appropriately located convenience / commercial locations within walking distance of residential areas. 3.33 Support alternative transportation and pedestrian linkages to commercial centres to reduce automobile use. 3.34 Ensure a variety of commercial land is available for use to meet current and future needs. 3.35 Support appropriate commercial development in the Hamlets. Municipal Development Plan Bylaw 00/005 - February 8 th, 2000 26
Residential Development It is an obligation of the Municipality to provide safe, attractive, and sustainable residential neighbourhoods with a variety of housing types to meet the diverse needs of the residents of the Regional Municipality of Wood Buffalo. Issue: Housing Affordability and Supply The cyclical nature of industrial activity in the region can impact housing demand and affordability, especially in the Fort McMurray Urban Service Area. The Municipality must assume a leadership role in addressing the housing concerns of all residents in the Region. Our Direction: 3.36 Be pro-active in ensuring that there is an adequate and affordable supply of housing available to all Wood Buffalo residents by: 3.36.1 Cooperating with and encouraging local industry and business to support innovative housing design and financing options; 3.36.2 Encouraging developers to undertake affordable housing strategies; 3.36.3 Supporting and assisting the Fort McMurray Housing Authority, Habitat for Humanity and other community groups working to provide affordable housing solutions; 3.36.4 Working to implement the recommendations put forward in the 1997 Fort McMurray Housing Strategies Task Force Report, where appropriate; 3.36.5 Supporting the development of industrial work camps, where appropriate, to minimize the impact of temporary workers on local housing supply; 3.36.6 Requiring support for provision of infrastructure and residential development from the Oil Sands industry to offset growth impacts on the municipality and ease housing shortages; 3.36.7 Easing future housing demand by investigating municipal land banking strategies; Municipal Development Plan Bylaw 00/005 - February 8 th, 2000 27
3.36.8 Investigate the possibility of the Municipality entering land development on a non-profit basis; and, 3.36.9 Supporting community based groups and programs for housing seniors and other special needs groups. Issue: Neighbourhood Design Attractive, sustainable and functional neighbourhoods that meet the diverse needs and desires of the residents of the Regional Municipality of Wood Buffalo are essential to the well-being of all residents. Our Direction: 3.37 Require that new residential subdivisions in the Hamlets and the Urban Service Area provide pedestrian linkages to parks and trail systems. 3.38 Develop residential neighbourhood design standards for the Urban Service Area. 3.39 Through Area Structure Plans and the subdivision design and approval process, encourage sustainable neighbourhood design including but not limited to provisions for the following: 3.39.1 Preservation of sensitive environmental features such as ravines, streams and wetlands through the dedication of Environmental Reserve; 3.39.2 Provision of greenbelts and linked parks to maintain wildlife corridors; 3.39.3 Land development that encourages walking and cycling and reduces overall vehicular traffic levels; 3.39.4 Encouragement of a variety of residential densities, including areas with single family residential subdivision on smaller than average sized lots; 3.39.5 Direct and accessible transit routes; 3.39.6 Traffic speed controls within neighbourhoods; Municipal Development Plan Bylaw 00/005 - February 8 th, 2000 28
3.39.7 Reduced and consolidated parking areas; 3.39.8 Stormwater retention facilities (ponds) that are naturalized or can be used for recreation purposes; and, 3.39.9 The provision of local recycling and composting depots. 3.40 Withhold support for scattered residential development to defray the high cost of providing municipal services 3.41 Require Area Structure Plans for all new residential neighbourhoods. The Area Structure Plan will detail the location of and include the following: 3.41.1 Parks and open space; 3.41.2 Evaluation of the need for and location of school sites and anticipated school populations; 3.41.3 Connecting parks and pedestrian walkway systems; 3.41.4 Roadway systems; 3.41.5 Public transportation networks; 3.41.6 Site conditions and topography; 3.41.7 Phasing of development; 3.41.8 Neighbourhood population; 3.41.9 The identification and protection of environmentally sensitive areas and locally significant environmentally sensitive areas; 3.41.10 Archaeologically or historically sensitive areas (if any); 3.41.11 Community focus and community facilities; 3.41.12 Servicing infrastructure and capacities; 3.41.13 Lot size and anticipated housing types and sizes; 3.41.14 Effect on the proposed development of existing roadways, pipelines, utilities and industrial activity; Municipal Development Plan Bylaw 00/005 - February 8 th, 2000 29
3.41.15 Evaluation of the need for church sites; 3.41.16 Evaluation of the need for noise reduction for major arterial roads adjacent to residential areas; and, 3.41.17 A detailed statement addressing compliance with the Municipal Development Plan; Industrial Development The Municipality must ensure that an adequate and appropriate supply of industrial land is available to meet current and future industrial needs. Issue: Location of Industrial Lands The Municipality recognizes that land must be designated for industrial development to service the community and to provide support for the natural resource industry. The location of land designated for this purpose must be determined by weighing the needs of industry and the employment it generates, against traffic, aesthetic and environmental concerns. Our Direction: 3.42 Consider the recommendations and industrial land use locations identified in the 1998 Industrial Land Use Study when approving industrial sites. 3.43 Review the feasibility of locating oil sands related industries adjacent to the oil sands facilities. 3.44 Prepare an ASP for the Highway 63 area North, from Super Test Hill to the proposed Mine sites on the east side of the Athabasca River. 3.45 Investigate the creation of additional unserviced industrial land adjacent to Fort McMurray, where appropriate. 3.46 Restrict the development of additional serviced industrial parks until Mackenzie Industrial Park is near capacity at which time investigate alternative sites for future serviced industrial land within the Urban Services Area. 3.47 Support the development of industrial land in the Hamlets when warranted by hamlet growth and industrial demand. Municipal Development Plan Bylaw 00/005 - February 8 th, 2000 30
Development on Crown Land The Municipality has limited jurisdiction and therefore limited control over many activities permitted on Crown Lands. These include oil and gas exploration, pipeline development, timber harvesting activities, as well as recreational and traditional Aboriginal uses. Issue: Coordination with Provincial Government Agencies and Regulators The Municipality recognizes the need to coordinate with the Provincial Government to achieve the orderly exploration and development of natural resources and the use of Crown Land in a manner compatible with the environmental and social considerations of the region. Our Direction: 3.48 Encourage the transfer or sale of Crown Land as required for community growth and development. 3.49 Support open communication with the provincial and federal governments regarding use and development of Crown Land. Timber Harvesting 3.50 Support the activities of the Alberta Forest Service in the management of this resource to provide full, environmentally sensitive use of the areas forests by: Oil Sands Expansion 3.50.1 Encouraging the coordination of timber harvest planning in conjunction with other surface disturbances; 3.50.2 Encouraging discussion between leasees and the Provincial Government on ways to return land to a pre-disturbed state; and, 3.50.3 Supporting and encouraging timber harvesting activities that retain the aesthetics of the area. 3.51 Work in cooperation with the Province and Industry to ensure oil sands Municipal Development Plan Bylaw 00/005 - February 8 th, 2000 31
developments are compatible with adjacent land uses and resources and have minimum impact on the natural environment. This will be achieved by: Natural Gas Activity 3.51.1 Maintaining on-going communication with the oil sands industry concerning plans for expansion, timing and the resulting impacts on the Municipality; 3.51.2 Supporting opportunities for the orderly exploration and development of mineral resources in previously unexplored areas or formations where not in conflict with adjacent development; 3.51.3 Encouraging development of new mineral recovery and reclamation techniques that are more efficient, economical and reduce the impact on the environment and other resources; 3.51.4 Supporting opportunities for industry to develop mineral resources where proven reserves exist, if those resources are not in conflict with adjacent development; 3.51.5 Supporting the objectives of the Athabasca Oil Sands Reclamation Advisory Committee; and, 3.51.6 Encouraging new developments to locate in areas that will not negatively impact existing or announced oil sands developments. 3.52 Encourage the continued efficient and environmentally responsible development of those natural gas resources not in conflict with adjacent land uses. 3.53 Regulate development adjacent to sour gas facilities in accordance with the Subdivision and Development Regulation, as required by the Municipal Government Act. Aggregate Extraction Municipal Development Plan Bylaw 00/005 - February 8 th, 2000 32
3.54 Work in cooperation with the Province and industry to manage the limited supplies of sand, gravel and topsoil to ensure their availability at reasonable cost for infrastructure and construction activities in the area. 3.55 Oppose subdivision or development that would compromise the future recovery of significant deposits of sand and gravel until an opportunity is provided for their extraction. Regional Municipal Growth Strategy Municipal Development Plan Development Policy Areas The policy areas indicated on Maps 5-15 are used to identify the intended use of lands within the Municipality in general terms. Uses are illustrative only. The densities and uses within these general areas will be further clarified in ASP s and ARP s. The Land Use Bylaw determines, in specific terms, the permitted and discretionary uses in all land use districts within the Municipality. The definitions for the Municipal Development Plan Policy Areas are as follows: Country Residential Policy Area - Identifies locations within the Rural Services Area appropriate for large lot residential developments. Intended uses may include: single detached homes, manufactured homes, and where appropriate, consideration may be made for intensive agricultural activities, as well as, parks and essential public service uses. Note: Development of residences in the Country Residential Policy Areas will not be provided with municipal water and sewer services. Future Country Residential Policy Area - Applies to areas appropriate for future Country Residential development, as demand warrants. Downtown Core Policy Area - Identified as the northern portion the Lower Townsite in the Urban Service Area. The Downtown Core Policy Area is intended to be the area of focus for locating major commercial, government, professional, business and entertainment activities which provide services to the entire Urban Service Area population and surrounding region. Anticipated uses of Downtown Core Policy Area may include: major retail outlets, personal service businesses and business support services, restaurants, bars and entertainment facilities, movie theatres, gas stations, hotels and motels, banks, churches, recreation facilities, and professional offices. The area may also contain appropriate forms of residential development in a variety of densities,as well as, parks, playgrounds, schools, Municipal Development Plan Bylaw 00/005 - February 8 th, 2000 33