TAMRMS#: B06
9.2
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Cemetery Bylaw
Notice given by: Councillor Joly
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PROPOSED MOTION(S):
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That Administration undertake appropriate stakeholder engagement and present amendments to Bylaw 9/2022, the Cemetery Bylaw, or any other applicable policy or bylaw, to allow for green burials in St. Albert.
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ADMINISTRATION’S UNDERSTANDING OF THE INTENT OF THE MOTION
It is Administration’s understanding that this motion, if passed, would direct Administration to undertake stakeholder engagement and update any existing bylaws, policies, and procedures such that the City of St. Albert would provide Green Burials as a service at the St. Albert Municipal Cemetery.
ADMINISTRATION’S RECOMMENDATION
That Administration begin stakeholder engagement, present amendments to Bylaw 9/2022, the Cemetery Bylaw, or any other applicable policy or bylaws, including service level revisions, to allow for green burials at St. Albert Municipal Cemetery, and that the funding requirements be presented to Council for consideration during the 2026 Municipal Budget cycle.
PURPOSE OF REPORT
The purpose of this report is to present a motion for which Councillor Joly gave notice on June 11, 2025.
ALIGNMENT TO COUNCIL DIRECTION OR MANDATORY STATUTORY PROVISION
CITY OF ST. ALBERT BYLAW 09/2022 CEMETERY BYLAW
BACKGROUND AND DISCUSSION
At the October 19, 2020 City Council meeting, an administrative backgrounder was prepared by administration in response to a notice of motion which requested that the CAO be authorized and instructed to take the necessary steps to enroll and maintain the City as a member of the Green Burial Society of Canada (GBSC) and to cause Green Burials, conducted in accordance with the standards set out by the GBSC, to be offered at the St. Albert Municipal Cemetery on a cost-recovery basis, by March 31, 2021 or as soon thereafter as all regulatory requirements for this service could be complied with. An administrative report was prepared for the November 16, 2020 Council meeting that outlined criteria for cemeteries to provide Green Burials in accordance with certification requirements published by the GBSC. An implementation plan was also presented within the administrative background including proposed timelines and estimated capital and operating costs associated with the proposed motion.
The following are excerpts from the 2020 prepared administrative backgrounder related to criteria for certification with GBSC.
The GBSC provides designation for cemeteries to provide green burials upon meeting certain criteria, depending on the size of the cemetery. The benefits of becoming an approved provider by the GBSC include increased marketing opportunities and assurance to the public that the cemetery offers green burials to a recognized standard.
Remains for green burial must be in a natural state to permit natural, unimpeded decomposition. Arterial embalming, in any form, is not permitted. Remains for burial must be enclosed in a fully biodegradable shroud casket or other container. Ideally, the container will be made from locally sourced, sustainably produced fabrics and materials. Remains will be placed and buried directly into the earth. The use of an outer burial container, such as a rough-box grave liner or vault of any type, is not permitted. A memorial will preferably be in the form of a communal memorial. If individual memorials are permitted, they must be minimally intrusive on the landscape and made from locally sourced materials.
The cemetery shall have active and ongoing community outreach to provide and advocate for Green Burial service practices across the community Advocacy for green burial shall be made in good faith, and without reservation or the creation of barriers, such as restrictive bylaws or pricing intended to discourage families from choosing a green burial option. Further, a cemetery with this designation shall strive to use electric or fuel-efficient cemetery vehicles and/or biofuels in standard cemetery equipment to be used in services; shall have a program for cemetery-wide, on-site recycling and/or composting of landscape and organic debris, as well as general waste; and continuously engage in cemetery-wide, ongoing initiatives to increase its sustainability. The cemetery will also have a section set aside exclusively for green burials that is at least one quarter (1/4) of an acre and up to one (1) acre in size AND will also meet at least eight (8) of the following additional criteria:
• Individual burials will be made at a depth of 1.2M (or less)
• Communal memorials only, no individual memorials permitted.
• Family/Public Participation in Green Burial service encouraged (including filling of grave, selecting plant materials for grave, planting of graves, etc.)
• Use of seed (in place of sod) and/or native plant species on grave surfaces.
• No supplemental watering (in-ground irrigation systems) of green burial areas.
• No use of herbicides or pesticides in green burial areas.
• No use of non-organic fertilizers or soil amendments in green burial areas.
• Use of xeriscape principles, cemetery wide, in site planning & maintenance.
• Use of electric or fuel-efficient cemetery vehicles and/or use of biofuels in standard cemetery equipment.
• Cemetery wide, on-site recycling and/or composting of landscape & organic debris, and general waste.
• Cemetery wide, ongoing greening initiatives.
• Native Species Habitat Restoration, preferably on-site OR as part of a local community habitat restoration project at an off-site location.
• Grave Re-Use / Time Limited Grave Lease, where/if permitted by regulatory jurisdiction or historical practice, encouraged as a function of sustainable land use.
• Double-Depth interments are permitted when used as a function of sustainable land use.
Cemeteries that commit to providing burials under the above criteria and provide written evidence of a conservation easement/commitment placed on the green burial area(s) in the cemetery protecting them against any future change of use may apply for GBSC Green Burial Cemetery (Small) Approved Provider recognition/designation.
Within the 2020 administrative directive, administration reported that the conditions of the GBSC could not be met within March 2021 timeframe that was proposed. The items noted as constraints were the following:
• A naturalized area did not exist and would have to be prepared. Active naturalization that includes the planting of various species of vegetation was estimated to take two to three years at an estimated cost of $20,000.
• On-site recycling and/or composting of landscape and organic debris and general waste would have to be established as current practice is to remove debris and take it to the compost depot. This would likely occur behind the existing maintenance building however it would be visible from the Green Burial area and the Field of Honor area. Operationally, crews would have to manage/turn this debris pile.
• Use of xeriscape principles - while this is in principle how cemetery vegetation is managed, clarification from GBSC would be sought with regards to the annual flower program which uses both large portable planters at the entrance and an in-ground bed within.
• Use of electric or fuel-efficient cemetery vehicles and/or biofuels in standard cemetery equipment - While Public Works endeavors to purchase fuel efficient maintenance equipment, there is no equipment currently assigned exclusively to the cemetery, and no electric maintenance vehicles. Clarification from GBSC would be sought to confirm if existing equipment would be suitable. Should alternative equipment be required, St. Albert procurement processes would need to be followed delaying completion of certification by March of 2021.
• Revision of the Cemetery Bylaw, to allow green burials.
• Installing a communal marker from locally sourced materials at an estimated cost of $20,000.
• The development of fees and charges for providing the service.
During the November 16, 2020 Council meeting, questions and discussions with administration ensued, however the Motion was delayed and was not read in at the Council meeting.
In anticipation that St. Albert could offer green burials at a future point, passive naturalization of a segment of land within the cemetery started. The northwest corner of the cemetery, approximately 0.4 acres, was allowed to passively ‘naturalize’, with vegetation from nearby Riverlot 56 moving into the site, and grasses allowed to grow. Each additional year, vegetation is maturing and is likely at a point considered appropriate by the GBSC. Should the City proceed with the intention to offer green burials in the future, consultation with the Indigenous community, application to the GBSC for consideration, and revision to the Cemetery Bylaw will likely need to occur.
IMPACTS OF MOTION
Should this motion pass, Administration will undertake stakeholder engagement, including consultation with GBSC to determine whether updated conditions or revised criteria exist for the certification. The information and related funding to implement the requirements would be presented in a business case for consideration as part of the 2026 budget cycle.
Engagement with the Indigenous community leading the ongoing residential school burial explorations within proximity to the St. Albert Cemetery will also be required, conducted internally by the Government and Indigenous Relations department, prior to breaking ground, as the St. Albert Municipal Cemetery is surrounded by former residential school grounds and lands associated with the operation of those institutions.
GBSC will be engaged to update understanding of membership in the GBSC based on current practices and equipment, and identify changes required to obtain membership.
Further, processes will need to be determined, potential revisions to the cemetery bylaw, and a fee structure established.
Financial:
Internal staff will conduct the financial analysis and prepare the business case.
Compliance & Legal:
Legal, Legislative and Records Services will be consulted regarding any further bylaw amendments required and confirmation of any additional requirements to add the service provision of Green Burials.
Program or Service:
Should engagement identify no concerns, and the business case provided leads to a passing motion, green burials will be listed as an option available at the municipal cemetery.
Organizational:
None at this time
Risks
The duration of stakeholder engagement may extend beyond the identified timelines.
ALIGNMENT TO PRIORITIES IN COUNCIL’S STRATEGIC PLAN
None at this time
ALIGNMENT TO LEVELS OF SERVICE DELIVERY
A.1.1 Cemetery Management
ALTERNATIVES
If Council does not wish to support the proposed motion, Administration presents the following alternatives for Council’s consideration.
Alternative 1: That Administration undertake appropriate stakeholder engagement and present amendments to Bylaw 9/2022, the Cemetery Bylaw, or any other applicable policy or bylaw, to allow for green burials in St. Albert, without the requirement of certification in GBSC.
Financial:
Internal staff will conduct the financial analysis and prepare the business case.
Compliance & Legal:
Legal, Legislative and Records Services will be consulted regarding any bylaw amendments required and confirmation of any additional requirements that would be required to add the service provision of Green Burials.
Program or Service:
Should engagement identify no concerns, and the business case provided leads to a passing motion, green burials will be listed as an option available at the municipal cemetery.
Organizational:
None at this time
Risks
The duration of stakeholder engagement may extend beyond the identified timelines.
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Report Date: July 2, 2025
Author: Battista Caputo, Louise Stewart, Tim Saunders
Department: Public Operations
Department Director: Tim Saunders
Managing Director: Dinu Alex
Chief Administrative Officer: William Fletcher