TAMRMS#: B06
7.1
REQUEST FOR DECISION
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Bylaw 8/2025 - Riverside ASP Amendment (1st, 2nd & 3rd Readings)
Bylaw 9/2025 - Land Use Bylaw Schedule A and Text Amendment (1st, 2nd & 3rd Readings)
Bylaw 10/2025 - Land Use Bylaw Schedule A Amendment (1st, 2nd & 3rd Readings)
Presented by: Eric Schultz, Planner, Planning and Development Department
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RECOMMENDED MOTION(S)
recommendation
Closure of Public Hearing
1. That the Public Hearing on Bylaws 8/2025, 9/2025, and 10/2025 be closed.
Bylaw 8/2025 Riverside ASP Amendment
1. That Bylaw 8/2025, being amendment 6 to the Riverside Area Structure Plan, be read a first time.
2. That Bylaw 8/2025 be read a second time.
3. That unanimous consent be given for consideration of third reading of Bylaw 8/2025.
4. That Bylaw 8/2025 be read a third time.
Bylaw 9/2025 Land Use Bylaw Schedule A and MDR Text Amendment (Select)
1. That Bylaw 9/2025, being amendment 5 to the Land Use Bylaw 18/2024, be read a first time.
2. That Bylaw 9/2025 be read a second time.
3. That unanimous consent be given for consideration of third reading of Bylaw 9/2025.
4. That Bylaw 9/2025 be read a third time.
Bylaw 10/2025 Land Use Bylaw Schedule A Amendment (Clarity)
1. That Bylaw 10/2025, being amendment 6 to the Land Use Bylaw 18/2024, be read a first time.
2. That Bylaw 10/2025 be read a second time.
3. That unanimous consent be given for consideration of third reading of Bylaw 9/2025.
4. That Bylaw 10/2025 be read a third time.
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SUMMARY
This report discusses proposed amendments to the Riverside Area Structure Plan Bylaw 1/2012 and two amendments to the Land Use Bylaw 18/2024, Schedule A.
The purpose of these amendments is to reconfigure land uses, placing higher-density development closer to major transportation and transit corridors; reconfigure Municipal Reserve land, transforming it into future programmable parks and enhancing resident access to open space; and improve connectivity by formalizing east/west roadway connections, enabling better movement within the community
ALIGNMENT TO COUNCIL DIRECTION OR MANDATORY STATUTORY PROVISION
The Municipal Government Act, section 692(1)(e) and 692(1)(f) require that a public hearing be held prior to second reading of a proposed land use bylaw or a proposed bylaw amending a statutory plan or land use bylaw.
The amendment conforms with Flourish (Municipal Development Plan) Policy 14. Land Use and Development, which states:
The policies in this section guide land use and development, according to the land use designations on Map 3: Urban Structure and General Land Use. Together, Map 3 and the policies guide the preparation of, and updates to, Area Structure Plans, Area Redevelopment Plans, and development guidelines.
Map 3: Urban Structure and General Land Use shows this area as Neighbourhoods, which are defined as:
“predominantly residential areas, as identified on Map 3, made up of low-rise housing, along with schools, parks, shops, and services. Many existing Neighbourhoods will evolve by adding new housing that respects the established character, while new Neighbourhoods will include a greater variety of housing types.”
Map 3 also shows the area containing one Mixed-Use Node, which are defined as:
“areas within Neighbourhoods that contain a range of commercial uses, apartment buildings, townhouses, and community services, all arranged within a cohesive, pedestrian-oriented network of streets and open spaces.”
BACKGROUND AND DISCUSSION
Riverside is a residential neighbourhood located in the northwest quadrant of St. Albert. It is bordered by the CN tracks to the north and northeast, the Sturgeon River to the south, and Ray Gibbon Drive to the west and southwest.
The Riverside Area Structure Plan (ASP) was first approved on January 23, 2012, and last amended on December 17, 2024. Previously, this neighbourhood was part of the Timberlea ASP, which was first approved on October 18, 2005, until it was repealed and replaced by the Riverside ASP. The neighborhood has been steadily building out over the last decade and is anticipated to continue to build out over the next decade. As such, over this period, there have been amendments to the Riverside ASP and more are anticipated as build out continues over the years.
On August 21, 2024, Clarity Development Advisory, on behalf of Leder Investments Ltd., submitted applications to amend the Riverside ASP Bylaw 1/2012 and to amend the Land Use Bylaw 18/2024, Schedule A. The purpose of these amendments was to change a single site from medium density residential to high density residential, to enable development of a proposed senior housing complex.
On November 7, 2024, Select Engineering Consultants Inc., on behalf of Genstar Titleco Limited, submitted applications to amend the Riverside ASP and to amend the Land Use Bylaw 18/2024, Schedule A. The purpose of these amendments was to redistribute residential densities within the plan area including removing a high-density site, adding a new public park and removing a linear park, and adding a new east-west connector road in the southern portion of Riverside.
In December, both applicants agreed to combine their ASP amendments into one bylaw (Bylaw 8/2025). This allowed for service capacity planning to account for both applications together, improving accuracy and consistency. It also ensured that the development statistics align with the envisioned land use designations for the ASP. The Land Use Bylaw amendments are not combined and are presented as separate amendments.
Please refer to attachments Bylaw 8/2025, Bylaw 9/2025, Bylaw 10/2025, and the Location Map (Figure 1).
The legal description and municipal addresses of the lands affected by these applications are shown in Table 1.
Table 1: Legal Descriptions and Addresses
|
Legal Description |
Address |
|
Plan 152 4950, Blk 5, Lot 4 |
4 Genstar Annex |
|
Plan 152 4950, Blk 2, Lot 10 |
10 Genstar Annex |
|
Plan 152 4950, Blk 1, Lot 8 |
8 Genstar Annex |
|
Plan 152 4950, Blk 5, Lot 3 |
3 Genstar Annex |
|
Plan 212 0072, Blk 2, Lots 1-14 |
205 - 231 Rankin Drive |
|
Plan 6079MC, Lot OT |
14C Genstar Annex |
|
Plan 212 2956, Blk 5, Lot 5 |
4 Redspur Drive |
Municipal Development Plan
The Municipal Development Plan (MDP) shows the area as Neighbourhoods and Mixed-Use Nodes.
Neighbourhoods are predominantly residential areas made up of low-rise housing, along with schools, parks, local shops, and services.
Mixed-Use nodes are areas within Neighbourhoods that contain a range of commercial uses, apartment buildings, townhouses, and community services.
The Riverside ASP amendment and the Land Use Bylaw amendments all conform to the MDP.
The following is a brief review of applicable MDP policies:
7.1.1. Address housing needs by monitoring changes in the local housing market and encouraging and enabling housing forms that respond to emerging housing needs.
7.1.3. Encourage intensification through innovative and emerging housing types that are compatible with existing and planned Neighbourhoods
8.2.2. Require street networks to be designed with high interconnectivity and small block sizes for new development and major redevelopment plans so that they support connectivity, walkability, and transit use.
11.2.2. Ensure municipal parks or other public open space are located within 400 metres of residences.
Bylaw 8/2025 Area Structure Plan (ASP) Amendment
The proposed Riverside ASP amendments represent both applicants’ proposed amendments.
The ASP amendment is proposing changes to four areas in Riverside. Please refer to ASP Comparison Map (Figure 2).
1. Northwest Park
The park (Municipal Reserve) located in the northwest has been reconfigured, providing improved street frontage. Minor changes have also been made to the local road network.
2. Southwest Park / Medium-Density Residential
A new park (Municipal Reserve) is being added in the southwest. It will have an area of 0.74 hectares± (1.83 acres±), with frontage from two different roads. Minor changes have also been made to the local road network. Some proposed low-density residential is changing to medium-density residential.
3. High-Density Residential Site and SWMF
A 1.49 hectares± (3.68 acres±) site located at the northwest corner of McKenney Avenue and Redspur Drive is changing from medium-density residential to high-density residential. The proposed stormwater management facility shape would enable more low density residential.
4. Residential Density Reconfiguration / Connector Road / Linear Park
The current ASP shows two high-density residential sites south of Rankin Drive, with a connector park running between them, and a strip of medium-density residential on the east side. This amendment would change some of the high-density residential to low-density residential, and change the medium-density residential site to low-density residential. The north-south connector park would be removed, which had a proposed trail to the Grey Nuns White Spruce Park. There will still be north-south connection to the Grey Nuns White Spruce Park through the trail proposed adjacent to the drainage channel and through roadway connections. A new east-west connector local road has been added between Raven Point and Redpoll Wynd, which was shown in the ASP as potential future roadway.
Density
The Land Use Bylaw (LUB) in Section 1.6 requires districts to adhere to density requirements in the ASP, which is a minimum 30 dwelling units per net hectare, as required by the Capital Region Board at the time the existing ASP was approved. The build-out of the remaining portion of this ASP will meet this minimum density requirement.
Under these proposed amendments, some of the higher-density residential sites have been relocated closer to McKenney Avenue, resulting in more lower-density residential located in the interior of the neighborhood. This would result in an overall planned density of 33.0 dwellings per net residential hectare (du/nrha), which is a decrease from the current density of 33.3 du/nhra, and represents the removal of 29 units. Under the former Edmonton Metropolitan Region Board (EMRB) regulations, this decrease in density would have required a referral to the EMRB.
As of the end of 2024, 1,658 units on 50.7 hectares± of residential land have been developed or have been approved for development. This is a density of 32.7 du/nhra.
The approval of the Riverside ASP amendments is needed before each of the redistricting proposals can be approved.
Redistricting (Bylaw 9/2025 and bylaw 10/2025)
The proposed redistrictings are consistent with the proposed amendments to the Riverside ASP. Redistricting of these lands is necessary to enable subdivisions and permits for the envisioned development.
Bylaw 9/2025 and Bylaw 10/2025 are independent, meaning that if one is not approved, the other may still be approved.
Bylaw 9/2025 Land Use Bylaw Amendment (Select)
North of McKenney Avenue, most of the lands subject to this application are currently designated Future Urban Development (FUD) in the Land Use Bylaw Schedule A. They would be redistricted to Small-Lot Residential (SLR) and Laned-Lot Residential (LLR), as well as one large Park (PRK) parcel that would be a stormwater management facility. One Laned-Lot Residential (LLR) site would change to Small-Lot Residential (SLR). One Small-Lot Residential (SLR) site would change to Laned-Lot Residential (LLR) as part of an administrative cleanup.
South of McKenney Avenue, the proposed park site would be redistricted from Small-Lot Residential (SLR) to Park (PRK). The eastern High-Density Residential (HDR) site and part of the western HDR site would be change to Small-Lot Residential (SLR). The connector park would be absorbed by the parcels it is adjacent to.
The Land Use Bylaw text amendment is within Part 5.6 MDR - Medium-Density Residential District, Figure 5.6 Sites for Dwelling (Townhousing - Single) in accordance with an Area Structure Plan; the Riverside ASP image would be deleted. The deletion of the Riverside ASP image is the result of the proposed low-density residential for this area in the Riverside ASP, and the proposed SLR District will determine the built form of housing.
A small High-Density Residential (HDR) site located along Rankin Drive would be changed to Medium-Density Residential (MDR) as part of an administrative cleanup. This site has been developed with townhousing.
The administrative cleanup is happening because when the Land Use Bylaw 18/2024 was adopted, a few parcels were labeled incorrectly. These applications present the opportunity to assign districting on the land to align what was there under Land Use Bylaw 9/2005.
The proposed land use districts are shown in Table 2. Please refer to the Proposed Redistricting Map - Select (Figure 3).
Table 2: Proposed Land District Changes - Select
|
Proposed District |
Area of Land |
Some Permitted Land Uses |
|
Small-Lot Residential (SLR) |
14.44 hectares± (35.68 acres±) |
Single-detached house, Semi-detached dwelling |
|
Laned-Lot Residential (LLR) |
3.03 hectares± (7.49 acres±) |
Single-detached house, Semi-detached dwelling, Townhousing (plex, single) |
|
Medium-Density Residential (MDR) |
0.59 hectares± (1.46 acres±) |
Townhousing (plex, single), apartment |
|
High-Density Residential (HDR) |
0.28 hectares± (0.69 acres±) |
Apartment |
|
Public Park (PRK) |
5.63 hectares± (8.99 acres±) |
Park, to support the existing stormwater management facility |
This proposed Land Use Bylaw amendment would redistrict a total of 23.97 hectares± (59.23 acres±) of land. A majority of the land is currently Future Urban Development (FUD) District, which is a holding district until urban development occurs on the land.
Bylaw 10/2025 Land Use Bylaw Amendment (Clarity)
The proposed high-density residential site would be redistricted from Medium-Density Residential (MDR) to High-Density Residential (HDR). The address is 4 Redspur Drive, located on the northwest corner of Redspur Drive and the site area is 1.49 hectares± (3.68 acres±). Please refer to the Proposed Redistricting Map - Clarity (Figure 4).
The landowner, Leder Investments Ltd., has indicated their intention to develop a seniors housing complex on the site. This site falls within Riverside’s mixed-use node.
The maximum number of units and height of a building on this site as a Medium-Density Residential (MDR) district is 140 units and 15.0 m. As a High-Density Residential district, the maximum number of units and height are 208 units and 25.0 m. The Development Authority can grant a density bonus and/or a height bonus under certain conditions.
Internal Circulation Comments
1. Stormwater Management Facility (SWMF)
The change in shape and slight decrease in the SWMF size meets Engineering requirements.
2. Transportation Impact Assessment (TIA)
The TIA report with updates was reviewed by Transportation Engineering and no concerns were raised. It was noted that the TIA concludes that the change in density is not anticipated to have a noticeable impact on operations at Rose Gate/Redspur Drive/McKenney Avenue.
3. Utility Constraints for 4 Redspur Drive
An updated Servicing Brief for sanitary and storm water was reviewed by Utilities. No concerns were raised. The water network analysis showed that a single 250 mm water pipe is insufficient to meet the increased fire flow demand associated with the change from medium to high density and that a looped network with a second water pipe may be required to address this issue. Future site servicing must be able to meet the requirements of the proposed development and will be detailed in the Development Agreement, in consultation with the City Engineer.
4. New Intersection Performance
The addition of the new east-west connector road would create a new intersection at Redpoll Wynd. Recreation and Parks asked how access to a parking lot planned for Grey Nuns White Spruce Park, directly east of the intersection will function. This would be addressed at the time of detailed design, prior to subdivision.
Other Comments
Recreation and Parks prepared an updated Open Space Evaluation. Based on the evaluation, the proposed changes to Municipal Reserve meet expectations. The removal of MR near high-density residential is not a preferred change, but the alteration from Connector Park to Neighbourhood Park enables functionality, allowing for the addition of amenities requiring larger spaces that will support community well-being and is therefore acceptable.
Economic Development was supportive of providing adequate housing options for our aging community.
The full comments can be found in the attachments Circulation Comments - Select and Circulation Comments - Clarity.
STAKEHOLDER COMMUNICATIONS OR ENGAGEMENT
Clarity Application
On April 8, 2024, Morada Developments held an in-person open house at the St. Albert Legion to present a proposal for Living Well Riverside, a luxury senior’s apartment. This meeting was intended to gather feedback about the concept. Three residents attended and discussed the proposal with the presenter.
On June 8, 2024, Clarity Development Advisory held a virtual public meeting to present the proposed amendments in a planning context. Two residents attended virtually, no questions were asked.
The Clarity application was circulated on September 4, 2024, to internal departments, external referral agencies, and property owners within a 100-metre radius.
A notification sign for the Clarity application was erected at the northwest corner of McKenney Avenue and Redspur Drive on September 12, 2024.
Select Application
The Select application was circulated on December 18, 2024, to internal departments, external referral agencies, and property owners within a 100-metre radius.
Two notification signs were erected at the northeast corner of McKenney Avenue and Redspur Drive on January 14, 2025.
On February 18, 2025, Genstar Development Company held an in-person open house at the St. Albert Legion to present the proposed amendments and provide an overview of the planning process. Ten residents attended. A transcript of the meeting was made available on the Cultivate the Conversation page.
Public Hearing
The public hearing is scheduled for May 6, 2025. A public hearing notice was posted on the City website, and a full page Citylights advertisement appeared on both April 17 and April 24, 2025.
Cultivate The Conversation
The City uses a public engagement platform called Cultivate the Conversation. The site enables Planning to post information about applications for residents to view, and includes a feedback tool that allows residents to post comments or ask questions.
A page was created for the Clarity application in April 2024 and another page was created for the Select application in January 2025. Between the two applications a total of 33 comments were submitted, from 25 unique commenters, as some people left more than one comment.
The ASP amendment applications were combined, so the comments from both pages were combined. A breakdown of the concerns and the number of unique commenters who raised that concern can be found in Table 4.
Table 4: Summary of Comments - Riverside ASP Amendments
Note: # is Number Responses Expressing This Concern
|
Concern |
# |
Example |
Response |
|
Density |
23 |
Too many units / apartments in the area already |
These changes move the higher density close to major transportation corridors and transit, and place it within the Mixed-Use Node. There is no significant change to the overall density in the neighbourhood. |
|
Traffic |
22 |
Congestion, difficulty exiting the neighbourhood |
There is currently construction underway at the intersection of McKenney Avenue and Redspur Drive. An updated Traffic Impact Assessment showed no significant change to traffic volumes once construction is complete. |
|
Parking |
12 |
Overflow street parking, blocked sightlines, big vehicles |
Transportation is aware of the issue and the City is in the process of installing “no parking” signs along the first 100 m of Red Spur Drive north of McKenney Avenue. |
|
Safety |
11 |
Near-misses, visibility problems, worry about kids/pedestrians |
The intersection at McKenney Avenue and Redspur Drive has been signalized, with a visible crosswalk and a push button for an audible signal. The pedestrian crossing time is calculated based on industry guidelines using the recommended walking speed for seniors. |
|
Property Values |
3 |
Fear of declining values |
For lots located in the interior of the neighbourhood, there is no supportive market evidence showing an increase in height would influence developer’s pricing. |
The full text of all comments received can be found in the attachment Cultivate the Conversation Feedback.
IMPACTS OF RECOMMENDATION(S)
The recommended approval of these applications will enable continued development of the Riverside neighbourhood.
Financial:
None at this time.
Compliance & Legal:
- First reading of bylaws is not a debatable motion and is required in order to table a bylaw for Council’s consideration.
- If a proposed development relates to more than one proposed bylaw, as in this instance, council may hold a single public hearing instead of a separate public hearing for each bylaw (MGA, s. 692(2)).
- The public hearing and first, second, and third readings of Bylaws 8/2025, 9/2025, and 10/2025 are scheduled for the same day. The Municipal Government Act provides that a proposed bylaw must not have more than two readings at a council meeting unless the council members present unanimously agree to consider third reading at the same meeting.
If unanimous consent for third reading of Bylaw 8/2025, Bylaw 9/2025, or Bylaw 10/2025 is not granted on May 6, 2025, after first and second reading, third reading of the applicable bylaw(s) will occur at one of the next regular Council meetings (either on May 20, 2025 or June 3, 2025). During that time between May 6, 2025, and third reading, Council members will be unable to accept further written or verbal submissions germane to this matter, and will not be able to ask for new, substantive information on the subject matter prior to third reading (MGA, s. 187; Procedure Bylaw, Schedule E, s. 19).
- Bylaw 8/2025 must be considered and approved before Bylaw 9/2025 or Bylaw 10/2025 can be approved.
- If Bylaw 8/2025 is approved, then the same procedure applies independently to Bylaw 9/2025 and Bylaw 10/2025.
Program or Service:
None at this time.
Organizational:
The approval of Bylaws 8/2025, 9/2025, and 10/2025 will have immediate impact on the Planning and Engineering Department, as subdivision plans, and engineering drawings will have to be reviewed, and development agreements negotiated to enable development. Other various departments may also need to conduct inspections and be involved in meetings with the developer / consultants.
Risks:
None at this time.
ALIGNMENT TO PRIORITIES IN COUNCIL’S STRATEGIC PLAN
Strategic Priority One, Economic Prosperity:
Support plans and agreements that foster development in St. Albert, including mature neighbourhoods, and build affordability in all new development. This strategy includes an update to the Land Use Bylaw and completion of the Infill Strategy.
ALIGNMENT TO LEVELS OF SERVICE DELIVERY
Current Planning Application Processing:
Processing and coordination of the approval of Statutory plans and amendments, subdivisions and condominium applications.
IMPACTS OF ALTERNATIVES CONSIDERED
If Council does not wish to support the recommendation, the following alternatives could be considered:
Alternative 1: Defeat second or third reading of Bylaw 8/2025 after closure of the Public Hearing. Bylaw 9/2025 and Bylaw 10/2025 would not be able to proceed. An implication of defeating this Bylaw would be that the applicants cannot re-apply within six months.
Alternative 2: Defeat second or third reading of Bylaw 9/2025 after closure of the Public Hearing and approval of Bylaw 8/2025. An implication of defeating this Bylaw would be that the applicant cannot re-apply within six months.
Alternative 3: Defeat second or third reading of Bylaw 10/2025 after closure of the Public Hearing and approval of Bylaw 8/2025. An implication of defeating this Bylaw would be that the applicant cannot re-apply within six months.
Financial:
None at this time.
Compliance & Legal:
None at this time.
Program or Service:
None at this time.
Organizational:
None at this time.
Risks
None at this time.
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Report Date: May 6, 2025
Author(s): Eric Schultz
Department: Planning and Development
Department Director: Kristina Peter
Managing Director: Adryan Slaght
Chief Administrative Officer: Bill Fletcher