TAMRMS#: B06
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53-57 Sturgeon Road Redevelopment
1. Bylaw 26/2017 53-57 Municipal Development Plan Amendment
2. Bylaw 27/2017 53-57 Land Use Bylaw Amendment, Schedule
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RECOMMENDATION(S)
recommendation
1. That Bylaw 26/2017, Being Amendment 18 to Municipal Development Plan Bylaw 15/ 2007, be read a first time.
2. That Bylaw 27/2017, Being Amendment 148 to the Land Use Bylaw 9/2005, be read a first time.
3. That the Public Hearing for Bylaw 26/2017 and Bylaw 27/2017 be adjourned until February 20, 2018 to allow for a decision by the Edmonton Metropolitan Region Board.
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PURPOSE OF REPORT
This report outlines proposed amendments to the Municipal Development Plan (MDP) Bylaw 15/2007, the Land Use Bylaw (LUB) 9/2005, and a proposed land disposition and acquisition between the developer and the City. The MDP and LUB amendments require a public hearing as per the requirements of the Municipal Government Act.
COUNCIL DIRECTION
Municipal Development Plan (MDP) Policy 17.3 requires Land Use Bylaw amendments be compliant with the MDP. Land disposition and acquisition is guided by City Council Policy C-ED-04 Land Transactions.
BACKGROUND AND DISCUSSION
Greg MacKenzie + Associates Consulting Ltd., on behalf of Kel-Jen Investments Ltd., submitted an application to redevelop the parcels at 53, 55, 57 Sturgeon Road, and a portion of 12P Berrymore Drive. The applicant is proposing changing the land use district from one that permits single-detached houses to a district that permits townhouses and apartment building(s). There is currently a single-detached house on each of 53, 55, and 57 Sturgeon Road. The lots slope from Sturgeon Road down towards the Sturgeon River to the northwest. Access to the proposed redevelopment will be from Sturgeon Road.
The applicant has also proposed a land transaction with the City of St. Albert. The land transaction involves the disposition of 0.13 hectares± (0.32 acres±) of land (a portion of 12P Berrymore Drive) along Sturgeon Road adjacent to 57 Sturgeon Road (currently districted Public Park), and the acquisition of an equivalent amount of land near the Sturgeon River (currently districted as Low Density Residential). There are no municipal reserve lands involved in the proposed land transaction and there would be no change in the amount of park land.
The proposed redevelopment is located on the west-central edge of the Braeside Neighbourhood, west of Sturgeon Road and east of the Sturgeon River (Attachment entitled “Location Map”).
The proposed land use districts, land areas, possible uses, and the legal descriptions and addresses are described in the attachment entitled “Addresses and Proposed Land Uses”.
Planning Processes
Council Approval:
•Municipal Development Plan (MDP): Required by the Municipal Government Act (MGA), this statutory plan sets out a vision and goals for all aspects of the municipality's development. This forward-looking plan provides policy direction to achieve vision over a 25-year timespan.
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•Area Structure Plan (ASP): A statutory plan which builds off the policy directive contained within the MDP. The ASP provides a refined framework for the development of new areas.
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•Redistricting Application: A request by a property owner or applicant to change the land use district for a given property.
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Administration Approval:
•Conditional Subdivision.
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•Development Agreement.
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•Subdivision Approved (Endorsement).
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•Development Permit.
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•Building Permit.
The application before Council includes an MDP amendment and redistricting. There is no Area Structure Plan for the Braeside Neigbhourhood as Braeside is a mature neighbourhood. As such, one must look to the MDP for policy direction on future land use decisions. Not included in the above list is a land transaction, which, tied to the MDP amendment and redistricting, is also part of this application and requires a decision by Council.
A subdivision application has also been received. Subdivisions are decided on by the Subdivision Approving Authority (Director of Planning and Development). A decision on the subdivision cannot occur until Council has made a decision on the MDP amendment and redistricting.
Application:
The application includes the following:
1. A Municipal Development Plan (MDP) Bylaw15/2007 amendment redesignating the land from Residential to Park and from Park to Residential (As seen on attachment entitled “Bylaw 26/2017 Being Amendment 18 to MDP”) (note - approval will require a referral to the Capital Region Board);
2. A Land Use Bylaw (LUB) 9/2005-Schedule A, amendment redistricting the lands from Low Density Residential (R1) District and Public Park (P) District to Medium Density Residential (R3A) District and Public Park (P) District (As seen on attachment entitled “Bylaw 27/2017 Being Amendment 148 to LUB (Schedule A)”);
3. The land transaction proposed by the developer for the City to dispose of City Park Land adjacent to Sturgeon Road and acquire private residential land adjacent to the river (As seen on attachment entitled “Map of 53, 55, and 57 Sturgeon Road Subdivision &Land Transaction (Aerial Map)”, request letter included as the attachment entitled “Letter of Request - Land Exchange, Braeside”) and;
4. A subdivision for the two parcels that are part of a proposed land transaction with the City of St. Albert (As seen on attachment entitled “Map of 53, 55, and 57 Sturgeon Road Subdivision &Land Transaction (Aerial Map)”).
As part of the application for the consideration of the MDP amendment, land transaction, and subdivision, the applicant was required to prepare the following studies:
1. Land appraisals for the two areas in the proposed land transaction (CONFIDENTIAL);
2. A tree appraisal by a consulting arborist for each area;
3. A natural area value assessment of each area; and,
4. A reclamation of natural area plan with enhancements for public use.
As part of the application for the consideration of the redistricting, the applicant was required to prepare the following studies:
1. Transportation Impact Analysis (TIA) and,
2. Servicing brief for sanitary, water, and stormwater.
Findings of Studies:
Land Appraisal: Results of the land appraisal are confidential as per sections 16 and 25 of the Freedom of Information and Protection of Privacy Act (FOIP). The results are summarized in the attachment entitled “Summary of Land Appraisal - Confidential”. The valuations identified in the tree appraisal do not impact the land appraisal. The land appraisal explores the highest and best use in terms of developability for the parcels in question, and is a professional opinion on the value of the land.
Tree Appraisal/Natural Area Value Assessment: The tree appraisal/natural areas assessment found that the trees and vegetation in the privately-owned parcel adjacent to the river had an assessed value of approximately $118,000.00 to $118,600.00. The City owned park parcel trees and vegetation had an assessed value of $36,200.00 to $36,300.00. The tree appraisal is based on individual trees, as well as the canopy and understory, and varies based on species, size of tree, and tree health. Many of the trees on the City-owned park parcel are in poor health while the privately owned lands contain high value species trees that are large and in good health.
Reclamation of Natural Area Plan: A reclamation of natural area plan was prepared that contains guidelines for the protection of natural areas and natural areas reclamation. If the land transaction is approved, public engagement would be conducted prior to developing a finalized park plan. All the costs of the trail relocation and redevelopment of the park would be at the developer’s expense.
Transportation Impact Analysis (TIA): The TIA found that existing weekday traffic on Sturgeon Road is 6,000 vehicles per day. The proposed development would increase traffic by approximately 600 additional trips per weekday, 10% over existing volumes. When combined with future traffic growth over the next twenty years, Sturgeon Road is expected to carry 7,700 vehicles per weekday. Arterial roadways such as Sturgeon Road generally have accepted traffic volumes of up to 20,000 vehicles per day. The TIA also noted there is nearby access to trails and public transportation. Parking requirements covered under the Land Use Bylaw are consistent with surrounding municipalities.
Servicing brief for sanitary, water, and stormwater: The servicing brief found that there is sufficient water pressure and supply for the development. There is sufficient sanitary capacity in the immediate sanitary system; however, development cannot proceed before the construction of the Phase 3 North Interceptor Trunk Line (Project 9). Stormwater management will require the detention of stormwater on-site to remain within the allowable stormwater release rate. The applicant has indicated that if the land transaction proceeds, the stormwater will be detained in an underground cistern, and if the land transaction does not proceed that a stormwater pond will be created on the low-lying lands of the existing site.
Administration Recommendation:
Land Transaction:
Administration supports the MDP amendment, redistricting from Low Density Residential (R1) District to Public Park (P) District and from Public Park (P) District to Medium Density (R3A) District, and the land transaction for the following reasons:
• The City would gain control and management of the area within the Red Willow Park corridor with the opportunity to make it more aesthetically pleasing, increase the setback between the trail and the proposed development, and provide better safety at the pinch point along a high use trail section.
• The decrease in size of the park space (20% reduction) along Sturgeon Road does not affect function of the park. The park is a passive space and there is still room for informal soccer, sliding, etc. Compared to other neighbourhoods, Braeside has one of the highest park reserves at 8.4 ha/1,000 people. This proposal to shift the park space to the Red Willow Trail provides an opportunity for a greater number of users as this is a high usage part of the trail for residents from all neighbourhoods.
• The costs of park and trail improvements, including relocation, would be borne by the developer. This updates the park infrastructure at no cost to the City.
• The riparian area lands adjacent to the Sturgeon River are environmentally sensitive lands. With the land transaction, the riparian area lands would be brought under public control, and could be enhanced to improve the condition of the riparian area.
• The City would acquire higher value trees that are currently part of the private lands in exchange for lower value trees on the public lands.
• The land transaction would create a more developable parcel allowing for a better built form and building product, while keeping development further away from the edge of the Sturgeon River.
• There is no overall loss of park land, it is a reshaping of park areas.
Residential Redistricting:
Administration supports the redistricting from Low Density Residential (R1) District to Medium Density Residential (R3A) District for the following reasons:
• The redevelopment would allow for the construction of townhouses or low rise apartments close to parks and open space, commercial facilities, and public transportation.
• The redevelopment would make use of existing infrastructure and reduce the regional development footprint by redeveloping in an already developed area.
• The redevelopment would allow more people easy access to Red Willow Park and aid in crime prevention through increased activity and surveillance of the adjacent park areas.
• The redevelopment would allow residents a range of transportation options. The site is close to transit amenities. A bus stop is located near the development along Sturgeon Road and the transit center is located approximately one kilometer from the site (St. Albert Centre Exchange). A future rapid transit station is planned near the corner of Sturgeon Road and St. Albert Trail. The Red Willow Park Trail systems provides active transportation options. The redevelopment is on an arterial roadway with sufficient capacity to handle the traffic generated by the development. Parking will be provided on-site and is based on requirements in the Land Use Bylaw 9/2005.
• The Medium Density Residential (R3A) District is compatible with surrounding land uses. Two Medium Density Residential (R3A) District buildings are adjacent to the development on the west side of Sturgeon Road. Across Sturgeon Road are Medium Density Residential (R3) District townhouses and Low Density Residential (R1) single family houses, which are separated from the development by a four lane arterial roadway (Sturgeon Road) and an approximately 10 m wide tree stand on the east side of Sturgeon Road.
• Height impacts in this location would be minimal. The permitted height for a Medium Density Residential (R3A) District building is 13 m, a minimal increase over the permitted height of 11.5 m height for a single-family house with a walkout basement in the current Low Density Residential (R1) District on the site. The development may be built into the hillside, limiting the height impact of the building compared to other locations, as height is measured from the lowest point of the building. The rear of the building would likely be lower in elevation than the front, with potentially three storeys in the front facing Sturgeon Road and four at the rear of the building facing towards the Sturgeon River. The developer will have to meet the regulations that are current at the time they submit a development permit application.
• The redevelopment would increase housing diversity and choice within a mature neighbourhood in a central location in St. Albert. There is a demographic trend in St. Albert towards smaller households with fewer children, and increasing population of people aged 50-64 and seniors 65+.
• This redevelopment is supported by the Edmonton Metropolitan Region Board's land use policies by increasing residential densities through redevelopment within existing urban areas.
Concerns with Land Transaction and Redistricting:
• Loss of street frontage for the park area is a negative, but Administration is of the opinion that this is outweighed by the opportunity to make the Red Willow Park corridor more aesthetically pleasing, increase the setback between the trail and the proposed development, and provide better safety at the pinch point along a high use trail section.
• Construction disturbances. The redevelopment project will lead to some inconvenience to the neighbourhood as construction proceeds. This is inevitable with any infill project in a mature neighbourhood and City Administration would work with the developer to keep inconveniences to a minimum.
Leadership in Energy and Environmental Design for Neighbourhood Development (LEED ND)
The applicant has registered the project for LEED Neighbourhood Development (ND) certification to begin the LEED certification process. Certification is conducted by the Green Building Certification Institute, which is an independent, impartial, third party certifying body. Achieving LEED certification demonstrates a project has achieved a high level of environmentally responsible sustainable development.
The final review and approval of LEED certification can only take place once the City has accepted infrastructure designs and once occupancy permits for the building have been issued. As such it is impossible to guarantee that certification can be achieved at the time of redistricting. The applicant has indicated they have confidence that LEED ND certification can be achieved and have received a letter of support from the Alberta Chapter of the Canada Green Building Council included as the attachment entitled “CaGBC Letter of Support”. Also attached is documentation of registration for LEED certification entitled “LEED Certification Registration”.
Administration is not basing its recommendation on the redistricting on the potential LEED certification, as certification is completed by a third-party organization and cannot be certified until construction is complete. However, it should be noted that LEED certification can only be achieved with the redistricting approval as redevelopment as a LEED project cannot proceed without it.
STAKEHOLDER COMMUNICATIONS OR ENGAGEMENT
A summary of public concerns and Administration’s review of these concerns can be seen in the attachment entitled “Summary of Resident Concerns”. All resident comments received are included in the attachment “Comments Submitted during City Circulation (Resident Comments)”. Some of the resident comments were collected by the Friends of the St. Albert River Valley (FoSARV) organization. These comments are included in the attachment “Comments Submitted during City Circulation (Resident Comments)”. Included as a separate attachment is an information package that the Friends of the St. Albert River Valley shared with residents, entitled “FoSARV Information Package”.
Summary of public engagement conducted:
• December 8, 2015: The applicant held a public consultation meeting at the Fountain Park Recreation Centre. A mail notification was sent by the applicant to properties within a 100 m radius of the amendment area and additional nearby streets. Notification was placed in the St. Albert Gazette on November 25 and December 2, 2015. A transcript was prepared from the meeting (Attachment entitled “Transcript - Public Meeting - Redistricting 55 and 57 Sturgeon Road, December 8, 2015”). Approximately 40 people were in attendance. Some of the main concerns that were heard were traffic, crime issues in the adjacent park, impact to views, impact to property values, and change to neighbourhood character, as well as questions about the project, process, and opportunities for input.
• February 3, 2016: A letter explaining the application process and responding to FAQs was sent by City Administration to residents within a 100m radius, entire streets in the surrounding neighbourhood where residents indicated a high level of interest in the project, public meeting attendees who provided contact information, and people who contacted the City and / or the applicant indicating they wished to be kept informed on the project.
• November 5, 2016: Public site visit hosted by the applicant to view the proposed land transaction parcels, learn about the findings of the studies, and have informal discussions with the applicant and City staff. A mail notification by the applicant was sent by the applicant to residents within a 100 m radius, entire streets in the surrounding neighbourhood where residents indicated a high level of interest in the project, public meeting attendees who provided contact information, and people who contacted the City and / or the applicant indicating they wished to be kept informed on the project. Notification was placed in the St. Albert Gazette on October 26, October 29, November 2, and November 5, 2016. Two site visits were conducted, one in the morning and one in the afternoon. Approximately 40 people participated. Discussions focused on the height of the proposed building, the use of the existing and potential park spaces, the impact of development near the Sturgeon River, parking, and traffic.
• November 9, 2016: The applicant held a public consultation meeting at the St. Albert United Church. A mail notification by the applicant was sent by the applicant to residents within a 100 m radius, entire streets in the surrounding neighbourhood where residents indicated a high level of interest in the project, public meeting attendees who provided contact information, and people who contacted the City and / or the applicant indicating they wished to be kept informed on the project. Notification was placed in the St. Albert Gazette on October 26, October 29, November 2, and November 5, 2016. A transcript was prepared from the meeting (Attachment entitled “Transcript - Public Meeting - Redistricting 55 and 57 Sturgeon Road, November 9, 2016”). Approximately 100 people were in attendance. Some of the main concerns that were heard were traffic, parking, impact to property values, the impact of development near the Sturgeon River, change to neighbourhood character, construction impacts, as well as questions about the project and opportunities for input.
• January 25, 2017: Circulation letter was sent by City Administration indicating an application had been received, describing the project, and asking for comments was sent to residents within a 100 m radius, entire streets in the surrounding neighbourhood where residents indicated a high level of interest in the project, public meeting attendees who provided contact information, and people who contacted the City and / or the applicant indicating they wished to be kept informed on the project.
For all Planning applications, City Council Policy C-P&E-01, Public Consultation requirements for Planning and Development processes, is followed. From the above list, the public meetings on December 8, 2015, and November 9, 2016, were required. The public site visit on November 5, 2016, was an extra engagement the developer conducted voluntarily. City staff attended both public meetings and the public site visit.
The standard circulation requirement is 100 m from the project site. Due to public interest in this application, the circulation area was extended well beyond the standard 100 m radius. The February 3, 2016 letter is not a standard requirement, but was seen as a way for City Administration to answer frequently asked questions and provide additional information to residents. Communication between residents and City Administration has been ongoing since the first public meeting on December 8, 2015.
IMPLICATIONS OF RECOMMENDATION(S)
Financial:
• Applicant would be required to contribute towards Project 9 and be responsible for infrastructure upgrades required to service the site.
• Applicant would be required to cover the costs of public engagement, trail relocation, park redevelopment, and natural area reclamation for areas impacted by the land transaction.
Legal / Risk:
• None at this time.
Program or Service:
• 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.
• Planning and Development, Recreation and Parks, Engineering, and Public Works will review and monitor park redevelopment.
Organizational:
• The immediate impact will be to Planning, Engineering, and Legal as subdivision plans, engineering drawings, and development agreements are submitted for review and approval.
ALTERNATIVES AND IMPLICATIONS CONSIDERED
If Council does not wish to support the recommendations, the following alternatives could be considered:
Alternative 1. Do not approve the MDP amendment, but proceed with redistricting 53-57 Sturgeon Road. The implication would be that the land transaction would not proceed, but the redistricting would allow redevelopment on the existing properties.
Alternative 2. Do not approve the redistricting. Implication would be that redevelopment of the site to the Medium Density Residential (R3A) District could not proceed. The applicant could return in six months with another proposal.
STRATEGIC CONNECTIONS
City of St. Albert Strategic Plan (Policy C-CG-02) - Pillars of Sustainability
BUILT ENVIRONMENT - We build our community towards the future to sustain balanced development, with a reverent eye to the past, honouring our unique settlement history and distinct identity.
NATURAL ENVIRONMENT- We protect, embrace and treasure our deeply-rooted connections with the natural environment through championing environmental action.
Governance Strategy
Council is committed to ensuring that the City of St. Albert is a responsive, accountable government that delivers value to the community.
Service Delivery Strategy
Council is committed to ensuring that the City of St. Albert is engaging residents to identify opportunities to improve delivery of services to the community.
Long Term Plans
Edmonton Metropolitan Region Growth Plan (2017), MDP, Environmental Master Plan, Red Willow Park Master Plan, Housing Diversity Action Plan.
Corporate Objectives
N/A
Council Policies, Bylaws or Federal/Provincial statutes
City Council Policy C-ED-04 Land Transactions.
Other Plans or Initiatives
N/A
Report Date: November 20, 2017
Author(s): Robin Beukens
Committee/Department: Infrastructure and Development Services
General Manager: Glenn Tompolski
City Manager: Kevin Scoble