ENGAGE. INNOVATE. INSPIRE.
North Shore Growth Node Area Structure Plan
PREPARED FOR Camrose County
PREPARED BY Williams Engineering Canada Inc.
December 19, 2011 WE File No. 23359.00
North Shore Growth Node ASP WE File No. 23359.00 December 19, 2011
Table of Contents
1.0 INTRODUCTION ...... 1 1.1 PLAN INTENT 1 1.2 LOCATION 1 1.3 LEGAL FRAMEWORK/POLICY CONTEXT 2 1.4 PUBLIC & STAKEHOLDER ENGAGEMENT 10 2.0 EXISTING SITE CONDITIONS ...... 12 2.1 EXISTING LAND USES 12 2.2 TOPOGRAPHY AND NATURAL FEATURES 13 2.3 SOILS 13 2.4 SURFACE WATER 14 2.5 WATER MANAGEMENT RIGHT OF WAY 14 2.6 SHORELAND 14 2.7 GROUNDWATER 15 2.8 FISH AND WILDLIFE 15 2.9 TRANSPORTATION 16 3.0 SITE CONSTRAINTS ...... 16 3.1 FLOOD HAZARD 17 3.2 HIGH WATER TABLE 17 3.3 SLOPE STABILITY 17 3.4 CONTAMINATION 18 3.5 SUBSIDENCE RISK 18 3.6 PIPELINES & GAS WELLS 18 3.7 NATURAL ENVIRONMENT 19 4.0 FUTURE LAND USE CONCEPT ...... 20 4.1 OVERVIEW 20 4.2 PROPOSED LAND USES 21 4.2.1 Lake Access Points ...... 21 4.2.2 High Density Residential Development ...... 24 4.2.3 Medium Density Residential Development ...... 25
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4.2.4 Upland reserves ...... 26 4.2.5 Commercial area ...... 27 4.2.6 Land for the sewage treatment system ...... 28 4.2.7 No compulsion to develop ...... 28 5.0 MUNICIPAL SERVICES ...... 28 5.1 LAKE ACCESS POINTS 28 5.2 WATER SUPPLY 29 5.3 WASTE WATER 30 5.4 STORM WATER MANAGEMENT 33 5.5 TRANSPORTATION IMPROVEMENTS 34 5.6 POLICING 37 5.7 FIRE PROTECTION 37 5.8 SOLID WASTE COLLECTION AND DISPOSAL 39 5.9 SCHOOLS 39 6.0 DESIGN CRITERIA ...... 40
7.0 PLAN ADMINISTRATION AND IMPLIMENTATION ...... 42
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List of Maps
Map 1 Location Map 2 Current ownership and zoning Map 3 Constraints on development Map 4 Air photograph Map 5 Use of new reserve lands Map 6 Creation of new shoreline habitat Map 7 Proposed future land uses Map 8 Excavated marinas at other lakes- comparative sizes Map 9 Traditional and cluster development Map 10 Conceptual trail system Map 11 Proposed major road access
Appendices
Appendix A Allocation of land uses and densities by quarter section Appendix B Figure 5: Public Access (Buffalo Lake Intermunicipal Development Plan)
North Shore Growth Node ASP WE File No. 23359.00 December 19, 2011
1.0 INTRODUCTION
1.1 PLAN INTENT
The North Shore Growth Node Area Structure Plan provides a framework for the subdivision and development of approximately 1,351 acres of land located adjacent to Buffalo Lake, between and including the Hamlet of Pelican Point and the subdivision of Braseth Beach. This area is vital to the County as it contains most of the public Buffalo Lake access for Camrose County and the majority of the County’s existing development within the Buffalo Lake area.
The recently approved Buffalo Lake Intermunicipal Development Plan (BLIDP) defines this area as a Growth Node and requires an Area Structure Plan prior to any additional subdivision or development. As such, the North Shore Growth Node Area Structure Plan will outline the future growth patterns for the area including: land use, density, public lake access, servicing, open space and recreation, wildlife habitat, and transportation and access. Once approved, all future development within the North Shore Growth Node plan area will abide by the policies contained within this area structure plan.
1.2 LOCATION
Buffalo Lake is a large, shallow lake located approximately 40 kilometres northeast of Red Deer, within the Red Deer River Basin. The lake has an area of 93 km2 and a maximum depth of 6.5 metres, and mean depth of 2.8 metres (Atlas of Alberta Lakes, 2004). The lakeshore is shared by Camrose County, Lacombe County, the County of Stettler, and the summer villages of Rochon Sands and White Sands.
Buffalo Lake is a popular destination for boating, swimming and beach activities. The lake offers various publicly accessible shorelands and natural landscapes which draw visitors from the region for day trips, camping, or lakeside living opportunities. Northern pike provide a sport fishery industry in the area. The lake is also one of the most important waterfowl breeding and staging areas in Alberta.
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1.3 LEGAL FRAMEWORK/POLICY CONTEXT
It is necessary to examine the relevant provincial, regional, and municipal policy documents that will affect the plan area before determining specific development plans. The subject site is within Camrose County and therefore the plan area is subject to County policy documents. The plan area is also within the boundaries of the Buffalo Lake Intermunicipal Development Plan (IDP) and the Buffalo Lake Integrated Shoreland Management Plan (Draft). Therefore the North Shore Growth Node ASP must abide by the policies listed in these documents.
1.3.1 Provincial Policy Context
Municipal Government Act Part 633(1)(2) of the Municipal Government Act outlines the requirements of an Area Structure Plan. It states that for the purpose of providing a framework for subsequent subdivision and development of an area of land, a council may by bylaw adopt an area structure plan.
An area structure plan a) must describe i) the sequence of development proposed for the area ii) the land uses proposed for the area, either generally or with respect to specific parts of the area iii) the density of population proposed for the area either generally or with respect to specific parts of the area, and iv) the general location of major transportation routes and public utilities, and b) may contain any other matters the council considers necessary
Senior Government Rules Although land use is a municipal responsibility, the County is restricted by the Subdivision and Development Regulation, AR 43/2002, and other provincial legislation as regards the following:
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Sewer lagoons: Residences must be at least 300 metres away from sewer lagoons.
The closest sewer lagoon is in Bashaw, 8,700 metres from Braseth Beach and 10,050 metres from Pelican Point.
Waste disposal sites: Residences must be at least 300 metres away from a waste disposal site, and no wells for human consumption must be drilled within 450 metres of such a site.
The County has advised that there are no current or past waste disposal sites in or near the growth node.
Proximity to highways: A municipality must not approve a residential subdivision within 800 metres of a provincial highway without the prior approval of Alberta Transportation (AT).
The north shore growth node is 4,800 metres from Highway 53, so AT has no jurisdiction over development. However, the department may require a traffic impact analysis if it is necessary to upgrade the intersections of Highway 53 with RR 204 (the Pelican Point road) or RR 210 (Aberhart Road). This is further discussed in the transportation servicing portion of this document.
Livestock operations: The Agricultural Operations Practices Act does not allow confined feeding operations (CFOs) close to residences. The minimum separation distance (MDS) depends on the type of operation and its size. Camrose County applies those setbacks reciprocally, and normally does not allow new residences close to confined feeding operations.
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There are no confined feeding operations within the north shore growth node, or close enough to be impacted by new residences.
Airports: The runway of Bashaw airport aligns with Braseth Beach, but as it is 5,700 metres away, the take-off and approach paths do not pass over any part of the growth node.
The runway of Stettler airport is aligned east-west, and the take-off and approach paths do no pass over any part of the growth node.
Under Transport Canada regulations, this is Class G (uncontrolled) air space.
Sour oil and gas: A proposal to build a residence within 1,500 metres of any sour gas well or pipeline must be referred to the ERCB for comments.
There are no such installations in or within 1,500 metres of the growth node.
Other oil and gas: Residences are not allowed within 100 metres of a sweet oil or gas well, or within the right-of-way of a sweet oil or gas pipeline. Setbacks are also required from compressor sites.
There are a number of wells and pipelines in the growth node, including multi-well directional-drilling pads. They are shown on Map 3, Constraints on Development. The design of subdivisions must take these into account: see Section 8 below.
Abandoned wells: It is sometimes necessary to bring a service rig to an abandoned well site. To accommodate this, the ERCB
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requires that there be a clear area, ten metres square, around the well, with a minimum six metre access right of way. There are abandoned wells in the area, and it will be the responsibility of developers to identify them from ERCB records and to provide for future access.
Historic sites: The Alberta Historical Resources Management Branch has the right to require a historical or archaeological assessment of land that is to be developed.
No sites of historic or archaeological interest were brought to our attention during the public input phase of this plan or by the County.
In summary, senior government regulations do not prevent development in the growth node, although, as noted above, the provincial crown owns a strip of land along the lake shore and has the normal owner's rights to limit use by third parties.
1.3.2 Regional Policy Context
Buffalo Lake Integrated Shoreland Management Plan (BLISMP, 2011) The Buffalo Lake Integrated Shoreland Management Plan provides direction for managing the water management right-of-way (ROW) which surrounds Buffalo Lake and the emergent vegetation found within the lake’s littoral zone (up to 100 m from the bank). The plan was developed as a joint effort between Alberta Environment and Alberta Sustainable Resource Development to guide land use decision making and support municipal planning processes to ensure the ecological integrity of the planning area’s shorelands, and to ensure that a high quality lake environment will continue to be maintained for local communities and Albertans (p. 28).
Section 3.1.7 (a) of the BLIDP states that “developers shall make themselves aware of the provisions contained in the BLISMP, which identify how the Government of Alberta shall manage the littoral zone and the Provincially owned Lake ROW which surrounds the Lake” (p. 22).
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The ‘BLISMP Management Areas’ Section of the BLISMP (p. 126) partitions the Provincially owned ROW into segments outlined below:
Existing Developed Existing developed uses
Recreational Use Accommodate existing recreational facilities and development
General Use Small footprint disturbances are allowed to accommodate ‘permitted’ and ‘compatible’ activities
Limited Use Disturbances must be minimized
Restricted Use No disturbances will be allowed except those which promote or enhance native vegetation communities.
The BLISMP further outlines Permitted Uses, Compatible Uses, Not Permitted Uses, and Activity to be Phased Out for each of these management area segments (p. 129). All development within the North Shore Growth Node must abide by the requirements listed in the Buffalo Lake Integrated Shoreland Management Plan.
Buffalo Lake Intermunicipal Development Plan (August, 2010) The Buffalo Lake Intermunicipal Development Plan (BLIDP) was developed to ensure that a cooperative and coordinated policy framework is in place for managing the development and use of lands adjacent to Buffalo Lake. Municipalities involved in the BLIDP include Camrose County, Stettler County, Lacombe County, the Summer Village of Rochon Sands, and the Summer Village of White Sands. A key aspect to the creation of the North Shore Growth Node ASP will be aligning the ASP with the visions and policies listed in the Buffalo Lake IDP. Below are key policies and content from the BLIDP:
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1. Growth Nodes & North Shore Growth Node The BLIDP determined five growth nodes around Buffalo Lake. These growth nodes are to contain more intensive development and higher population densities including multi-lot residential uses, resort and recreational developments, and related commercial activities. The IDP states that the majority of the population and development activity within the IDP plan area must occur within these identified Growth Nodes and have an overall average density of 0.9 units per gross acre (BLIDP, 2010).
The North Shore Growth Node is bound by the Hamlet of Pelican Point on the east and the Braseth Beach development on the west, covering approximately 1,351 acres. According to the IDP, the overall capacity for units in the North Shore Growth Node is 1,215 (BLIDP Appendix C: Final Unit Calculations for Growth Nodes). With 264 units presently within the North Shore Growth Node plan area, this potentially leaves 963 units available for development within this area. The BLIDP defines dwelling unit as any residential unit, recreational unit, or commercial unit that is used to shelter and provide overnight accommodation. A dwelling unit must provide sleeping quarters, sanitary facilities, and cooking facilities.
2. BLIDP ASP Requirements The BLIDP lists a number of requirements for Area Structure Plans within these Growth Nodes. Section 4.3.2 (a) outlines these ASP requirements:
A Growth Node ASP must address i) proposed land uses; ii) distribution of the overall development density stated in the IDP; iii) transportation improvements; iv) water, wastewater and storm water management requirements; v) recreation/open space; vi) strategies for protecting water bodies and wildlife habitat; vii) public access; and viii) any other items as may be deemed necessary by the governing Municipality.
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3. Density & Capacity Section 3.1.5 of the BLIDP states that “an overall average density of approximately 0.9 dwelling units per gross acre for each Growth Node shall be required and identified through the preparation of a Growth Node ASP” (p. 21).
Section 3.1.6 states that “overall development capacity for the Growth Nodes within the Plan Area shall be set with a maximum of 7,330 total units including existing and future residential and recreational developments” (p. 21).
4. Residential Development Section 3.1.2 (a) of the IDP states that “when residential and recreational development in the Growth Nodes take the form of multi-lot subdivision, low impact, cluster developments should be considered the preferred option wherever possible and shall be compatible with surrounding development, both in architectural character and scale, in the manner in which it incorporates naturescaping, and the retention of open spaces” (p. 19).
5. Servicing Section 3.1.11 (a) and Section 3.1.12. (a) state that all multi-lot subdivisions and single lot developments comprised of multiple dwelling units, excluding those multiple dwelling units intended for agricultural use, shall be serviced by collective water supply and distribution systems and collective wastewater collection and disposal systems (pp. 27-28).
Policy 3.1.11. (b) and 3.1.12. (b) do however state that at the discretion of the governing Municipality individual on-site water wells may be allowed where the Municipality would allow for individual private sewage systems, providing that the water source is high quality groundwater with a sufficient supply (p. 28), and individual private wastewater disposal systems may be allowed for lots 2 acres or more in size or an alternative technology for enhanced private sewage disposal meets or exceeds the applicable regulatory standards for the protection of surface and ground water quality (p. 28)
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As required by the IDP, section 3.1.12(b), private sewage disposal systems will only be allowed when the proposed technology affords the municipality an acceptable level of maintenance and management. The IDP, section 3.1.12(c), further requires that the only type of private sewer system allowed within 800 metres of the lake is a holding tank.
6. Reserves 3.1.8. (a) For subdivisions adjacent to the Lake, Municipal Reserves (MR) and Environmental Reserves (ER) shall be positioned in combination with the Provincially owned Lake ROW to increase the separation of development from the Lake as outlined in 3.1.10 (d) (p. 23).
3.1.8. (f) Municipalities may provide opportunity for developers to dedicate additional MR in return for development incentives. If development incentives include higher densities, the average overall density of 0.9 units per Growth Node shall not be exceeded (p. 23).
Policy 3.1.10. (d) of the BLIDP requires that a 5 metre strip of land adjacent and parallel to the provincially owned Lake ROW be dedicated for municipal use along the entire length of lake frontage. The BLIDP also states that this land immediately adjacent to the 5 metre reserve strip shall be protected at the discretion of the governing Municipality.
1.3.3 County Policy Context
Camrose County Municipal Development Plan The Camrose County MDP provides a long-term vision for the growth and development of the County. The interpretation section (p. 2) of the MDP states that "where there is any uncertainty or apparent conflict, [the MDP] is subservient to the Buffalo Lake Intermunicipal Development Plan, and a general statement or policy in this [MDP] may be over-ridden by a more specific statement or policy in an Area Structure Plan."
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Section 7 of the MDP, outlines policies for lake development within the County. Policy 7.4 identifies Buffalo Lake as a recreational lake and states that subject to any other statutory plan, nearby land will be managed to maximize the lakes’ recreational value (MDP, p. 16).
Camrose County Land Use Bylaw The Camrose County Land Use Bylaw regulates and controls the use and development of land and buildings within the County to achieve the orderly and economic development of land. Currently a majority of the North Shore Growth Node plan area is designated as General Agriculture District (A), with the Braseth Beach and Pelican Point developments designated as Lake Resort District (LR). Policies and guidelines listed within the Camrose County MDP and LUB will be examined during the ASP preparation process to determine if any amendments will need to be made to municipal statutory and non-statutory plans.
1.4 PUBLIC & STAKEHOLDER ENGAGEMENT
North Shore Growth Node ASP Stakeholder Advisory Committee The North Shore Growth Node Area Structure Plan Stakeholder Advisory Committee was formed by the County for the purpose of guiding the project through the plan development process. The Stakeholder Advisory Committee provided local knowledge of the area and feedback to the project team throughout the creation of the ASP. The Committee is comprised of seven landowners within the North Shore Growth Node plan area and the area Councillor. The project team consulted with the Stakeholder Advisory Committee at strategic points in the plan development process for feedback, review, and direction.
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Public & Stakeholder Engagement The first of two public open houses was held on Saturday, May 21, 2011 at the Bashaw Community Centre. Approximately 50-60 people attended the public open house. Comment sheets were distributed at the open house and four comment sheets were received by the project team. The project team held a presentation to provide an overview of project background and timeline and to present four development scenarios for the North Shore Growth Node plan area. The project team then outlined next steps for the project including future opportunities for public involvement. A question and answer period followed the presentation.
The purpose of the public open house was to: Introduce the North Shore Growth Node ASP project and project team; Review project timeline and upcoming opportunities for public involvement; Information gathering - gain knowledge of opportunities and constraints within; the plan area with regards to the natural environment, transportation, agriculture, public access, open space, servicing, and land use; Provide a venue for the community to voice concerns and/or questions regarding the project; and Present four development scenarios to illustrate various development patterns that could occur within the plan area and to stimulate discussion.
The results from the first public open house were fairly consistent in that the public recognized the need for an additional public access point within the North Shore plan area, including a public beach, campground, marina, and recreational facilities to ease the pressure on the Pelican Point amenities. The public also expressed interest in a trail system to connect various developments within the plan area and open spaces for future recreational opportunities. In terms of development preferences, the public preferred the cluster approach with large open spaces or the approach of smaller, serviced lots (0.3 acres) closer to the lake with larger, unserviced lots (2-3 acres) further from the lake. Members of the public also voiced a strong concern over the long-term stay of RVs on current lots within the developed portions of the North Shore Growth Node Plan area.
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A second public open house was held September 10, 2011 at the Bashaw Community Centre. The purpose of the open house was to present the Draft North Shore Growth Node ASP and answer questions and concerns from the public. As an overview, the public expressed concern over the marina location, including boat traffic, the number of RV units permitted per lot, the short-stay campsite, road access points, and the mechanical treatment system. Detailed results from the second public open house are found in the North Shore Growth Node ASP Public Open House # 2 Meeting Notes, posted on the Camrose County website. Some of these concerns could not be addressed directly due to policies listed under the Buffalo Lake Integrated Shoreland Management Plan and the Buffalo Lake IDP, however detailed explanations were added to the ASP under each specific issue.
In addition to landowners and members of the public, the project team consulted various provincial government departments and Camrose County during the creation of the North Shore Growth Node ASP.
2.0 EXISTING SITE CONDITIONS
2.1 EXISTING LAND USES
Map 4 is a recent air photograph of the area. It can be seen that there are four main land uses within the growth node at present.
Natural landscape The 1918 township survey shows a single water body starting at the small lake north of Braseth Beach, running north and east through what are now three separate lakes, into Rockeling Bay. Much of that old lake bottom is now covered in trees; the water table is too near the surface for the land to have any agricultural value.
Agriculture Agriculture is the main land use in the area. Until recently most cleared land was in grass, either for hay of for grazing by beef cattle. Recently much of this grass has been worked up and was seeded to grain in the spring of 2011.
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There are no confined feeding operations (CFOs) in the area.
Residential / recreational Uses There are a total of 223 lots at Pelican Point, 55 at Braseth Beach, and another 6 lots currently being subdivided just west of Pelican Point, for a total of 284.
Pelican Point contains a small marina, campground, and day use area, all open to the public. They are used by residents and by day users from elsewhere. These are inadequate now, and new facilities will be required to serve any future development.
Oil and gas activity There are a number of oil wells in the area, including multi-well directional-drilling pads. These wells are served by a network of pipelines and compressor stations.
2.2 TOPOGRAPHY AND NATURAL FEATURES
Much of the drainage basin, particularly north and east of the lake, is knob and kettle terrain and lies within the Aspen Parkland Eco-region. Dominant vegetation within this region include trembling aspen, wild rose and saskatoon, with rough fescue grassland on drier, south-facing slopes (Atlas of Alberta Lakes, 2004).
The 1918 township survey shows an old lake bottom stretching north of Braseth Beach to Rockeling Bay, with much of that area now covered in trees. Agriculture is a dominant land use within the North Shore Growth Node and until recently most cleared land was in grass, either for hay of for grazing by beef cattle.
2.3 SOILS
Soil class ratings within the North Shore Plan area range from 0% to 62.2%. As mentioned above, agriculture is the main land use within the north shore plan area however, woodland areas are automatically downgraded even if there is good potential to produce a crop. The IDP has identified this area as a growth node receptive to development regardless of soil class.
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2.4 SURFACE WATER
The Parlby Creek – Buffalo Lake Water Management Project (2001) is an initiative of Alberta Environment to divert water from the Red Deer River into Buffalo Lake to manage water levels at a pre-determined level. This level is currently set at 780.85 metres and pumping will commence once lake levels drop below 780.65 metres. The objectives of the water management system are for the provision of agricultural flood control, water sources for fish and wildlife enhancement, municipal water supplies, and the stabilization of water levels in Buffalo Lake (Parlby Creek-Buffalo Lake Water Management Systems Operations Plan, Alberta Environment, 2011).
Wetlands There are several permanent and ephemeral (seasonal) wetlands located within the plan area. These will be managed through more detailed outline plans and any loss of these wetlands will be mitigated for at the time of subdivision and development.
2.5 WATER MANAGEMENT RIGHT OF WAY
Surrounding the lake is a Water Management Right of Way (ROW), which is a strip of public land owned and regulated by the Provincial Government. This ROW is determined by the 1:100 year flood elevation for Buffalo Lake (781.2) and was created to ensure that no land acquisition or private development can occur within this flood elevation should water levels drop.
2.6 SHORELAND
The Buffalo Lake Integrated Shoreland Management Plan segments each shoreline area within north shore plan area as general use, restricted use, existing developed or limited use. There are no restricted use areas within the plan area. There are two existing lake access points at Pelican Point (public access) and Braseth Beach. The remaining shoreline is relatively undeveloped.
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2.7 GROUNDWATER
At most Alberta lakes, residences depend on individual wells drilled into local aquifers. The availability of groundwater limits the amount of development that can be allowed. This is not an issue at Buffalo Lake as almost all residences will be served by a municipal water system supplied by a regional line originating at the Red Deer River: see Section 5.0 below.
2.8 FISH AND WILDLIFE
Buffalo Lake is a widely recognized area for fish and wildlife, particularly waterfowl. Buffalo Lake is a valued waterfowl production and staging area and supports several large colonies of colonial water birds (Prescott, D.R.C., and S.D. Stevens, 2007). Colonial nesting habitats in proximity to the ASP plan area are illustrated on Map 3.
According to "Bird Populations on the Shoreline of Buffalo Lake: Identification of Priority Areas for Conservation Report", completed by the Fish and Wildlife Division of Alberta Sustainable Resource Development, various sensitive species were detected during point counts in the North Shore plan area including: Northern Pintail, Green-winged Teal, White-winged Scoter, Western Grebe, American White Pelican, American Bittern, Great Blue Heron, Northern Harrier, Sora, Caspian Tern, Forester’s Tern, Black Tern, Least Flycatcher, Purple Martin, Barn Swallow, and Baltimore Oriole.
Although the North Shore area contained counts for various sensitive bird species, point count scores for the north shore area (based on the types and abundance of bird species detected in counts and their risk of extirpation in the province) were fairly low in comparison to the rest of the lake. The areas identified in the report as high priorities for conservation were generally areas with extensive emergent vegetation, and relatively remote and undisturbed by human activity.
According to ASRD – Fisheries, the shoreline in the ASP area is in a moderately or highly impaired condition due to issues such as grazing on the provincially owned ROW and unauthorized beach development and aquatic vegetation removal. Aquatic vegetation areas adjacent to the ASP are important rearing and feeding areas for
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northern pike, burbot, and white suckers (ASRD, 2011).
In terms of wildlife, the Buffalo Lake area supports white-tailed deer, mule deer, occasional moose, and muskrats (Atlas of Alberta Lakes, 2004).
2.9 TRANSPORTATION
Map 1 illustrates existing transportation features in and around the plan area. These transportation features consist of the following:
Highway 53 runs east-west, approximately 3 miles north of the plan area Highway 21 runs approximately 4 miles northwest of the plan area Aberhart Road, a 2-lane gravel road, provides access to the plan area (Braseth Beach) via Highway 53 Range Road 204 (Pelican Point Road), a 2-lane paved road, extends south from Highway 53, providing access to the Pelican Point development Range Road 205, a two-lane gravel road extends south from Highway 53, extending into the northern portion of the plan area Township Road 414 extends east-west, approximately 1 mile north of the plan area Township Road 412, a one-lane gravel road, extends from Pelican Point westward towards Braseth Beach, ending at a residence in the western portion of the plan area
3.0 SITE CONSTRAINTS
Map 3 illustrates the various land use constraints within the North Shore Growth Node Plan area. These constraints are described in further detail below.
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3.1 FLOOD HAZARD
The Atlas of Alberta Lakes notes that the level of Buffalo Lake has varied by as much as 2.3 metres in the past 40 years. Normally this would indicate a flood risk along the shoreline. However, in 1995 the Alberta government purchased a strip of land all round the lake, up to the estimated once-in-100-years flood elevation. If Buffalo Lake rises within this 100-year level, it will not affect private land.
There may however be some minor flood risk around the various small lakes inside the growth node. As noted above, the 1918 township survey showed a single, larger lake where there are now several smaller ones. For the purpose of this ASP, we will take the flood risk line on inland parcels to be the 1918 water level. Upon subdivision, any land below this level should be taken into Environmental Reserve.
3.2 HIGH WATER TABLE
Water table tests were supplied by the developers before the County approved the Braseth Beach subdivision and all lots created since 1980 at Pelican Point. These tests showed no risk to buildings or sewer systems.
While it is not safe to generalize from those results, it should be noted that throughout the growth node the slope of land is generally sufficient to shed snow melt and rainfall. However, there may be problems if there are areas of trapped drainage. This will be addressed at the time of subdivision.
3.3 SLOPE STABILITY
There are no steep slopes in the growth node, so there is no concern about slope stability.
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3.4 CONTAMINATION
No contaminated sites were brought to our attention during the public input phase of this plan nor were any identified by the County, however, individual sites, if previously developed, may require environmental site assessments prior to any re-development of the site or development immediately adjacent to the site.
3.5 SUBSIDENCE RISK
Underground coal mining has been carried out throughout Camrose County (including under the City of Camrose). This can lead to problems with subsidence and the collapse of buildings and utility pipes. We therefore checked ERCB records to see if this had happened in the study area. No mining is recorded in or near the growth node lands.
3.6 PIPELINES & GAS WELLS
There are a number of oil wells in the area, including multi-well directional-drilling pads. Specifically there are four active gas wells within the North Shore plan area. Map 3 illustrates the 100 metre development setbacks from these wells. These wells are served by a network of pipelines and compressor stations. For non-sour pipelines, development can occur up to the pipeline right-of-way.
As this ASP was being written, new wells were being drilled. Pipelines will be required to serve them, so Map 3 must be recognized as incomplete.
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3.7 NATURAL ENVIRONMENT
The Buffalo Lake Integrated Shoreland Management Plan designates land within the water management ROW, south of the Braseth Beach development as ‘General Use.’ To the east of this, within the Water Management ROW south of the NE 7 and NW 8, the land is designated ‘Limited Use’ and further east of this, along NE 8 and half of Pelican Point shoreline the land is designated ‘General Use.’ The shoreline in the western portion of Pelican Point which is already disturbed is designated ‘Existing developed,’ while the shoreline in the most easterly portion of the Pelican Point boundary is designated ‘Limited Use.’ There are no shoreland areas within the North Shore Growth Node designated as ‘Restricted Use.’ The North Shore Growth Node ASP will abide by the uses outlined for these areas in the BLISMP.
To the northeast of the Pelican Point Subdivision are Rockeling Bay and Rider Lake. The wetlands located in this area support a breeding population of endangered piping plovers and several waterfowl species. The North American Waterfowl Management Plan and their agent, Ducks Unlimited, proposed the construction of a water conveyance works from Buffalo Lake into Rockeling Bay and Rider Lake, although Rockeling Bay - Rider Lake project has been currently delayed due to problems securing land affected by increased water levels. If this land is secured however, the Rockeling Bay control structure could be operated to periodically allow water to flow into Rockeling Bay when Buffalo Lake is at elevation 780.85 (Parlby Creek-Buffalo Lake Water Management Systems Operations Plan, Alberta Environment, 2011).
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4.0 FUTURE LAND USE CONCEPT
4.1 OVERVIEW
The North Shore Growth Node presents many development opportunities within the County as it contains the majority of the existing development in Camrose County and most of the public Buffalo lake access in the County. During the first public open house it was clear that development was not opposed in this area, and rather well-planned, sustainable development was preferred. A need was identified for a marina, boat launch, and more public lake access points to ease the pressure off the current Pelican Point marina. The public also expressed the need for trails and both passive and active open spaces, and eventually a commercial outlet within the North Shore plan area to meet the growing population demands.
Four development scenarios were presented at the first public open house on an imaginary half section of land to stimulate discussion amongst the public and to give the project team an idea of how the North Shore area should be developed. Scenario 1 included Uniform Density, where all unsubdivided land is allocated 0.8 lots per acre. Scenario 2 included urban size lots close to the lake shore, and larger, unserviced lots further back from the lake. Scenario 3 proposed clusters of urban size lots separated by large open areas, while Scenario 4 used the idea of Transferrable Development Rights and density trading. Members of the public seemed to prefer a mixture of scenarios 2 and 3 for the North Shore Plan area.
The future land use concept also reflects the findings of the review of all relevant background information and environmental restrictions of the site, including regional plans and studies (Buffalo Lake IDP and BLISMP), Camrose County’s existing statutory plans, natural features (low-lying areas, forested areas, drainage areas, topography), current land uses, servicing opportunities, and existing and proposed transportation features.
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4.2 PROPOSED LAND USES
4.2.1 Lake Access Points
In a lakeshore recreational development, access to the lake is key, so this area structure plan starts by identifying lake access points. When doing so we must be guided by the IDP, which sets two limitations on the use of the shoreline:
1. First, some parts of the shore are "off limits" to development because this would interfere with their value as fish and wildlife habitat. These are shown on Map 3, Constraints on Development.
2. Following from this, the IDP says that only one new major lake access point should be created, and sets the location of this access point. Minor accesses may also be created if they are compatible with the natural values of that part of the shoreline.
The following recommendations follow these rules. Map 5 sets out the locations and use of new reserve lands.
Major access: The first priority is to construct a boat launch, an offshore marina, a day use area, and adequate parking to serve expected new development and to relieve the pressure on the present facilities in Pelican Point.
The IDP allows only one new public boat launch on the north shore, and it must be on that part of the shoreline designated for "general use" in the Integrated Shoreline Management Plan. Figure 5: Public Access of the Buffalo Lake IDP shows the eastern portion of NE 8 as a ‘potential access’ (Appendix B). As shown on Map 3 of the North Shore Growth Node ASP, NE 8 has the only undeveloped "general use" shoreline in the growth node, so the major access must be on that quarter.
The exact location of the major lake access within NE 8 will be determined following detailed analysis of the shoreline by Alberta Sustainable Resources Development (SRD), who are responsible for the Crown land which surrounds the lake.
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Subject to the consent of SRD, the best place for the major access is a little way west of RR 204, the Pelican Point road. There are three reasons for this.
First, it is close to a paved road.
Second, the owner of NE 8 intends to subdivide and create cottage lots in the near future. When he does so, he must dedicate 10% of the land to the County for park and recreation purposes. NE 8 contains about 37 acres, so 3.7 acres will be due as municipal reserve. The east end of the property is low, so it is less suitable for houses, and the owner would prefer to dedicate it as reserve and keep the higher land for residential lots.
Third, the shoreline is no more than 50 metres from TR 412 at the east end of the quarter, but at the west end it is 570 metres from the road. If the reserve is taken at the west end of the quarter, it will require an access panhandle. A 15 metre (50 foot) panhandle, the minimum to accommodate traffic, will take up so much land that it will leave only one and a half acres or MR at the shoreline.
This is not a perfect place for a boat launch, because there are shallow and rocky areas offshore, but it should be noted that the slope of the lake bottom is steeper here than at Pelican Point: the lake is two metres deep within 200 metres of the shore.
Having two boat launches in close proximity may cause some problems with excessive boat traffic. There are two ways this might be alleviated. The first is to set buoys to mark travel lanes, separating the boats from the old and new marinas, and also marking shallow areas. It would also be useful to have a no-wake zone. This can be done by restricting boat speeds. The County cannot do this alone, as it has no jurisdiction over navigation, but it can request senior governments to do the work, or, in the case of buoying, to delegate authority to the municipality.
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Although the marina and associated development will be the main public access point in the north shore growth node, it cannot be the only access. It is not reasonable to expect people living at the west end of the growth node to walk or drive up to two miles to reach the lake. Other, minor accesses will be needed.
Access 2: A minor lake access should be developed where undeveloped Range Road 205 meets the lake. This is the road allowance on the west side of NW 8. It is understood that the present owners of NW 8 are not interested in developing the land in the foreseeable future, so until that happens, only very limited use should be allowed. Eventually, if and when the adjacent lands are developed, the access can be expanded eastwards along the shore on to municipal reserve land.
The IDP designated this part of the shoreline as "limited use", in which disturbance must be minimized. That will be done by restricting the size of the disturbed area, and by careful site design.
Access 3: A third access is proposed where Township Road 412 touches the lake. Municipal reserve would be taken from NE 7 and SE 18. It is understood that the owner of NE 7 is considering building a campsite, and he will need good lake access. If this is created at the west end of his property, people from further north can use it without having to pass through the camp site. A reserve parcel here will act as a buffer between Braseth Beach and the proposed camp site.
The IDP shows the shoreline in SE 18 as available for "general use" and in NE 7 as "limited use". Development should therefore be concentrated in SE 18; development in NE 7 should be kept off the crown land. Access 4: The final proposed access uses the undeveloped part of Range Road 210, west of Braseth Beach. This shoreline is designated for "general use" in the IDP. It will not be required until NW 18 is developed. The road is only 20 metres wide, but at this point the crown ownership extends about 90 metres along the shoreline, so a one and a half acre beach access can be created on a 100 metre lake frontage.
These four public accesses will be the only new ones permitted on the lake, and the IDP does not allow new private docks.
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Outside the four access points, the IDP, Section 3.1.10(d), requires that a five metre wide strip of municipal reserve be taken along the entire length of the crown land. It is recommended that this land be used for a low-impact walking trail. Trails should also be built to give pedestrian access to the access points from nearby lots; the locations will be determined at the time of subdivision.
The loss of shoreline and offshore habitat at the four access points can be offset, if necessary, by the creation of new habitat so there is no net loss, as required by BLISMP at Section 4.1. Map 6 shows how this can be done. It is based on a very successful habitat creation project at Sunset Harbour on Pigeon Lake.
New habitat need not be adjacent to the old, lost habitat. With the approval of fish and wildlife authorities, it could be on another, suitable property purchased by the developer and dedicated for that purpose.
4.2.2 High Density Residential Development
It is proposed that land close to the lake be developed at densities of about three lots per gross acre. There are two reasons for this. First, it makes sense to maximize the number of lots within walking distance of the lake. Second, higher density development can be economically serviced with piped water and sewer.
It is proposed that all land south of TR 412 be allocated to such high density, fully serviced lots. Similar sized lots should also be encouraged north of that road if it is within easy walking distance of the lake, using the access points proposed above.
A one-third acre lot will have a frontage of 60 to 75 feet (18 to 23 metres), but developers are free to propose smaller lots in clusters surrounded by open land.
In total, 712 serviced lots are proposed on 237 acres. This is shown on the map of Proposed Land Uses, Map 7.
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In the usual lake cottage subdivision, the front row of lots are the most desirable. Those without a direct view of the water are seen as less attractive. Recently, developers have tried to maximize the number of lots with water exposure by creating harbours and canals. Two good examples are Sunset Harbour at Pigeon Lake, and Meridian Beach at Gull Lake. Sunset Harbour has only 400 metres of lake shore, but by constructing an eight acre inland harbour, it manages to give water frontage to every one of its 62 lots. Meridian Beach has no true lake frontage, but an inland canal system gives water frontage to 64 lots. Map 8 shows the scale of these developments.
In both cases, fish habitat was disturbed by dredging a channel from the inland waterway out into the lake. This required approvals from both the provincial and federal governments, which is a long process requiring all sorts of environmental impact studies. However, Sunset Harbour and Meridian Beach show that it can be done, and a similar development is now under way west of Rochon Sands on Buffalo Lake.
These inland harbours are not generally available for public boat launches; that remain the responsibility of the municipality.
4.2.3 Medium Density Residential Development
Outside the high density area, it is proposed that one lot be allowed per three acres. Map 7 shows the locations for 134 such lots (or RV stalls or campsites) on 404 acres.
Developers of this land will have a choice. They can create lots of two acres and larger in size, big enough to have individual wells and sewer systems, if proven viable by wells tests and sewage tests (but note that the IDP, in section 3.1.12(b), has very strict rules for the type of systems allowed, and section 3.1.12(c) requires lots within 800 metres of the lake to use either a municipal sewer system or holding tanks). Alternatively, developers can create the same number of lots, but reduce their size, cluster the lots, and surround them with larger areas of open land. Conceptual designs are shown on Map 9. Clustered lots would require municipal water and sewer.
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This raises the question of how the open land will be owned and managed. There are a number of possibilities:
The land could be sold for farming, with that use guaranteed by a restrictive covenant. The land could be held jointly by the people who buy the lots. The development could be structured as a bare land condominium, with the open area held as common property. The land could be dedicated to the County over and above the 10% municipal reserve allowed by the Municipal Government Act. A gift to a municipality is treated in the same way as a charitable donation, and creates a credit against federal and provincial income tax. If the land is deemed to be ecologically sensitive, recent changes to the Income Tax Act make it even more attractive because the increase in value between adjusted cost base and market value is not taxed.
4.2.4 Upland reserves
The location of lake shore reserve has already been addressed. On upland quarters, reserves may be divided into three categories: active use, buffer strips, natural areas, and undevelopable land.
Active use: About ten acres at the intersection of Pelican Point Road and Township Road 412, north of the proposed marina, should taken as municipal reserve and developed as a 97-lot short-stay campsite, made more attractive by the existing tree cover. It is about 200 metres back from the lake shore, near enough that people can walk, and far enough that is does not conflict with the IDP and BLISMP policies of discouraging campsites adjacent to the lake. A parking lot will also be required for day users. A good, wide buffer of natural vegetation with mature trees and a fence should separate the active camping area from any pre-existing development. Like all County campsites, this one must be policed, especially late in the evening, so that campers do not disturb nearby cottage owners.
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Buffer strips: Buffer strips are proposed along the east side of Braseth Beach, and along the west side of Pelican Point Road, to protect the privacy of the existing houses; and along the north side of Township Road 412 to create a visual buffer between the high density development south of the road and the low density development to the north. These buffer strips will be wide enough to accommodate walking trails and a visual landscaped buffer, but not so wide that they take up all the reserve land which the County can claim. A conceptual trail system is shown on Map 10. Additionally, there will be local trail systems within future developments, and these will connect to the main trail system.
Natural areas: A block of trees in SW 17 has value as wildlife habitat. As it is high and dry, it cannot be claimed as environmental reserve, so it should be taken as municipal reserve.
Undevelopable land: Large areas of the growth node are low and wet, and should be taken into municipal ownership as environmental reserve. However, as they have recreational value for walking trails and bird watching, the land should be given some credit against municipal reserves.
4.2.5 Commercial area
When the growth node is completely built out, it could be home to three thousand people, enough to support a commercial centre. A six acre site is shown on the west side of Pelican Point road. For comparison, the Village at Pigeon Lake (VPL) covers about eight acres.
This site was selected as it is on a paved road, and is conveniently located for people in the Pelican Point area, and those using the future boat launch and campsite.
The VPL development includes some duplex housing adjacent to the commercial area. This type of mixed development may be worth considering for the North Shore Growth Node.
A small store would also be welcome at the new marina.
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4.2.6 Land for the sewage treatment system
Land at the north end of SE and SW 17 is proposed as the receiving area for treated domestic sewage from the development area. The proposed treatment system, discussed in more detail below, will treat or remove pathogens and contaminants, resulting in clean treated effluent which can be applied to the land using irrigation sprays.
4.2.7 No compulsion to develop
The fact that this ASP allocates an area of land to a future use does not compel the owner to develop. Owners have the right to maintain the present use for as long as they wish. However, if they do choose to develop, it must be in conformity with this ASP.
4.2.8 Secondary dwellings
The IDP limits the amount of development that will be allowed in the North Shore Growth Node to 1,227 units. This does not just mean cottages. Secondary suites, garage suites, and RVs are included in this total. The present land use bylaw in some cases allows such uses on a residential lot in addition to the house. The bylaw needs to be amended to control this. The sections of the bylaw which need attention are noted in section 7 of this document.
5.0 MUNICIPAL SERVICES
5.1 LAKE ACCESS POINTS
Lake access points will be built on road allowances that are already administered by the County, and on reserve land dedicated through the subdivision process. This means that there will be no cost to the County to acquire the land. The cost of developing this land should be borne in the first instance by the County, which should then recover its cost by means of a levy on new development in the area. Lacombe County has a financial model which Camrose County can use as a template.
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Once the new marina has been built, the County should seek a private operator. First refusal should be given to the person who now runs the marina at Pelican Point.
As the owner of the boat launches, the County should take responsibility for placing buoys offshore to control boat traffic.
5.2 WATER SUPPLY
The IDP states that all new residential lots under two acres in size must connected to a municipal water system.
Consideration of water supply options has taken into account the November, 2006, Camrose County Water Supply Feasibility Study.
Lots at Buffalo Lake will either be served from a new water line that will be constructed up Highway 21 from Highway 12 to Ferintosh (the "12/21 line"), or by the Shirley McClellan water line. The connection details will be confirmed at a later date. The water line would be constructed from either the 12/21 or the Shirley McClellan water lines to the North Shore Growth Node. It is assumed that the line will parallel the highway and road alignments in the ditch.
At 2011 prices, the expected cost is in the order of $10 million. It is anticipated that a storage reservoir or fill station will be required on the site to allow for emergency and peak storage needs. The first site to explore for engineering feasibility is in the proposed commercial area (Area A on Map 7). The cost will depend upon the detailed design of the system, including alignment, pipe sizing, and storage/pumping requirements, as well as market conditions.
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A study should be undertaken to confirm that there is sufficient capacity within the regional system to accommodate the projected water demands, to confirm the alignment options, to establish initial trunk main sizing, and to establish the preliminary sizing/location of the reservoir. Such a study should also identify the costs associated with providing fire protection capabilities, pressure and flow, consistent with full urban standards.
The County will front this cost, and recover it from lots as they are connected to the system. Braseth Beach will be offered access to the municipal water system at cost. The estimated cost per lot (total cost divided by the assumed approximately 1,200 of lots in the growth node) is $8,300. It should be noted that this does not include an assessment again commercial users.
The County hopes to build the line from Bashaw in three to four years, but the timing cannot be guaranteed. Should a developer choose to proceed prior to the line being in place, the County will allow new lots to be created using water cisterns in the interim. It will register a caveat on the title of each lot, notifying the buyers that they cannot drill a well, and must connect to the municipal water system as soon as it is available. This option would require the County to incur the cost to install the distribution mains within the existing development, recovering these costs from the individual lot owners. This cost would normally be borne by the developer, with the cost recovered as part of the lot price. An alternative would be to require the developers to install, at cost, a communal system aligned to allow future connection to the municipal system.
5.3 WASTE WATER
The IDP, section 3.1.12(a), requires that all new residential lots must connect to a municipal piped sewer system with three components: a gathering system, a treatment plant, and a safe way of disposing of the treated effluent. Consideration of water collection options has been based upon the June, 2007, Camrose County Wastewater Systems Feasibility Study.
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Lots larger than two acres may use a private sewage treatment system than complies with section 3.1.12(b) of the IDP, unless they are within 800 metres of the lake, in which case the only allowable type of private system is a holding tank installed and operated to comply with section 3.1.12(b) of the IDP.
In 2007, before the IDP was adopted, the County engaged a firm of consulting engineers to design a sewer system for Pelican Point (the above-referenced Feasibility Study). The study recommended a gravity system with a force main to deliver raw sewage to a treatment lagoon in NE 17, just west of the Pelican Point road. Treated effluent would be released northwards and find its way to the lake via Rockeling Bay.
A lagoon system deals with pathogens and reduces BOD, but it does not remove the nutrients that cause lake eutrophication. At present water levels, there is no surface outlet from Buffalo Lake, so whatever enters the lake, stays there. Over time, a lagoon system would increase nutrient levels. BLISMP says that this is not acceptable (section 3.1 (v)). Accordingly, this option is not considered viable.
Two primary alternatives have been identified for dealing with site-generated sewage. The first is to collect it in a municipal gathering system and pipe it off-site, probably to Bashaw, for treatment. This would involve a collection/storage point, a lift station, and 15 to 20 km of force main. It also requires that there be sufficient capacity in the received treatment facility.
The other alternative is to install an on-site mechanical treatment system to remove the nutrients, and dispose of the treated effluent on hay land using an irrigation system. This is the system used for several hundred lots at Meridian Beach and Raymond Shores on Gull Lake, and it is recommended for the north shore growth node. (More information on the Meridian Beach system, including costs, is available at www.inshored.ca/services.htm.)
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Generally, such a treatment facility is about the size of a large house. There is no detectable odour, minimizing the potential nuisance impact on adjacent properties. The treated product is stored in a small holding pond. Because it virtually odourless, and presents no health hazard, Alberta Environment requires only 150 metres setback from the pond to residences instead of the normal 300 metres associated with lagoon facilities.
It is recommended that the treatment plant be located in SE 17, west of the Pelican Point subdivision, because this is easily accessible from Pelican Point and the subdivision proposed on NE 8.
Treated effluent could be applied to hay crops on the north half on SE and SW 17. This is north of the height of land, so any surface runoff goes north, away from the lake. A study should be undertaken immediately to confirm the viability of the sewage treatment options, and to identify system sizing, location and likely costs.
The system should be constructed by the County as soon as possible. It should include a collection system in Pelican Point, with all new construction in Pelican Point and elsewhere in the growth node area required to connect to the system as soon as it is available. The system should be designed to serve Braseth Beach at cost. The owners of existing houses could voluntarily connect, or could continue with their present individual systems for five years so they did not have to abandon their existing investment.
New developments elsewhere in the growth node should be required to connect to the system at the time of subdivision. Where development consists of unsubdivided stalls or units, lines should be run to those stalls or units when the internal roads are built.
The initial costs associated with the lift station, treatment /disposal and trunk mains should be covered by the County. The County should recover its capital costs over time by a levy on lots that connect to the system. The running costs of the system would be met from monthly user fees based on water consumption. Costs associated with collection lines within a development would be the responsibility of the developer.
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It will take some time to design and construct the system. Should a developer choose to proceed prior to the system being in place, the County should require that all new houses, stalls, or units be constructed with a sewer line to the road. A holding tank would be installed along the line inside the property. Until the municipal system is operational, the resident would have the tank pumped out as needed, and the effluent hauled away to Bashaw for treatment. The costs associated with the proper pickup and disposal of the sewage would be the home owners'. Once the system is operational, the holding tank would be abandoned, and the sewage would flow directly to the collection system in the road. As in the County of Wetaskiwin, the requirement to abandon and connect to the municipal system should be enforced through an agreement registered on title.
5.4 STORM WATER MANAGEMENT
The proposed development areas are adjacent to, or within a mile of, Buffalo Lake, and the run-off discharges to the lake. Accordingly, storm water management to control the impact of new development runoff is recommended. This impact includes the rate of run-off contribution to the lake, as well as the potential for contributing contaminants to the lake. These contaminants can include naturally occurring silts, fertilizers from farm and landscaping, and hydrocarbons or grit associated with vehicle use of the area.
An overall storm water management plan (SWMP) for the development area should be carried out in order to identify or confirm the current run-off mechanism and the anticipated impact of the identified full development scenario. This SWMP will also identify likely locations for storm water management facilities and the associated outlets to the lake.
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As part of the subdivision approval process, each developer should be required to prepare and submit a detailed storm water management plan (prepared by a professional engineer licensed to practice in the Province of Alberta) for approval by the County and Alberta Environment. All storm water management systems shall be consistent with the storm water management plan for the area as a whole, and be in accordance with the County’s engineering design standards. They should also incorporate Best Management Practices as outlined within Alberta Environment’s “Storm Water Management Guidelines.”
All stormwater management facilities are to be located outside of all road rights-of-way and shall be contained within public utility lots. Road ditches may be utilized as part of a storm water management plan, however, no water detention or retention in the road right-of-way is to be permitted.
In general, costs for storm water management facilities located within a development that serve only the development would be the responsibility of the developer. Where such a facility is used by other areas, an endeavour to assist process should be developed based upon the pro rata contributions to the system. Where a facility is located on land owned by the municipality, including outfalls, such costs should be recovered from the area developments as part of a development levy process.
5.5 TRANSPORTATION IMPROVEMENTS
When the growth node when it is fully developed, it could have over 1,200 lots and a population of 3,000. A community of that size needs good quality road access. A single paved road will not be sufficient. The County has a long term goal of paving the Aberhart Road (RR 210) from Highway 53 to Braseth Beach. A paved cross connection to the Pelican Point Road is recommended in order to provide a second access option for the area and to balance traffic volumes through the developed areas. Four possible alignments for the cross connection are shown on Map 11.
For the purpose of this discussion, Aberhart Road and the identified routes will be considered Access Roads functioning as arterial roadways for the efficient movement of significant traffic volumes into and out of the North Shore Growth Node area.
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Each option has a number of advantages and disadvantages. Route #3 requires the least amount of roadway to be constructed of the three options. As it runs through the proposed development areas, it will provide more efficient opportunity for direct access, but this will require land to be set aside from the development area to accommodate the roadway. Additional access will also limit the efficiency of traffic movement, requiring a lower posted speed and additional traffic control. As such, the road would likely function more as a collector road than an arterial road.
Route 2, being at the north limits of the development area, allows some future opportunity for direct access to developments. This level of access is less than with Route 1, decreasing the potential need for traffic control and allowing the road to act more as an arterial roadway. The Route 2 alignment at Range Road 205 is in conflict with a small water body (located directly adjacent to Range Road 205 on the west side of the roadway). As this represents potential additional construction costs or the need to accommodate wet land re-location, Route 2 may need to be re-routed around this small water body if it is selected as the preferred route.
Route 1, being the farthest removed from the development area, will act as an arterial roadway, with limited access points and a higher posted speed. This option requires the greatest length of roadway construction, with the potential need to accommodate a small wetland.
In assessing the alignment options, consideration should also be given to the potential demand for development adjacent to an up-graded roadway outside the growth node area.
Where a main access road is on a private property, the developer of that property will be required to construct the portion of main access road that is identified at the time they choose to develop their land. Since the main access road will serve a regional role, the cost should be shared between the developer and the County based on use ratios negotiated at the time of the development. Internal roads are the responsibility of the developer.
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A Traffic Impact Assessment (TIA) may be required for developments within the study area. Very small developments will have a minimal impact on adjacent traffic volumes and it will be the County’s discretion to require a TIA for the very small developments. A TIA will determine the impact a development has on the adjacent roadways and lands and outlines what improvements would be required due to the proposed development.
Since a TIA only focuses on the impacts that an individual developments has, a Master Transportation Plan (MTP) should be conducted on the overall development area to determine the impacts the future traffic will have on the adjacent roadways and intersections. The MTP should address any improvements to the adjacent roadways and the intersections on Highway 53. It is expected that the intersections of Highway 53 and both Aberhart Road and Pelican Point Road will require up-grading due to the increased volumes resulting from full or partial development of the growth node areas. The MTP will include all potential costs for the improvements, trigger points to when the improvements are required and cost allocation to the lands that would be utilizing the roadways and intersections that will require the improvements. From the findings of a MTP, local road improvement charges or off-site levies can be determined.
Until a MTP is conducted for the study area, developers will be required to pay for all improvements to external roadways and intersections. Within the development agreement of each developer, an “endeavour to assist” clause should be implemented to help reimburse developers for extra off-site costs that they may have incurred due to developing prior to others in the area.
The quality and standards of road surfaces and structures should be determined by Camrose County on all roads located within the developed areas and on all roadways adjacent to the developed areas linking them to Highway 53. Generally, internal subdivision roads should be paved where the lots are under an acre in size. The County should determine where a rural cross-section or urban cross-section would apply. Main access roads should be to a rural cross-section. To maintain the aesthetics of the development areas, rural cross-sections are considered more appropriate and less expensive than curb and gutter.
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A minimum road right-of-way for all main access roads should be at least 30.0 metres in width. The main access roads should have a minimum paved asphalt surface of 8.0 metres in width.
Several counties have used provincial grants to pay for the paving of recreational access roads. Examples include Ponoka County’s TR 422 from Highway 795 to Gull Lake, and Wetaskiwin's West Buck Lake Road. Camrose County should follow suit.
If provincial grants do not cover the whole cost, the shortfall can be made up be a per- lot levy at the time of subdivision. As an example, Ponoka County charges $5,000 per lot.
5.6 POLICING
Pelican Point is about ten miles from the RCMP detachment in Bashaw, so response times are reasonable. However, most public order issues are not criminal in nature, but have to do with nuisances and anti-social behaviour. These can be handled by municipal peace officers. Camrose County has recently increased the number of peace officers to four, and is willing to increase the numbers further if the need is there.
5.7 FIRE PROTECTION
A community of 1,200 lots and 3,000 people needs fire protection. In a rural environment, this has three elements:
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Limiting the spread: There is not much a municipality can do to stop fires from starting, but suitable policies can stop them spreading. The land use bylaw may require that building exteriors (roofs and walls) are fire-resistant so that if a fire does start, it is contained inside the building where it starts. Mandatory sprinkler systems can suppress a domestic fire before it has a chance to spread outside the building. All these are within the jurisdiction of the County. The land use bylaw can also control the type, height, and density of vegetation to create fire breaks so there is no fuel to carry a fire from one location to another. The size and location of fire breaks is a technical matter, and this ASP is not the place to set detailed rules, but the County fire chief should be asked to recommend changes to the land use bylaw, and to review the design of subdivisions. He may also recommend other actions within municipal jurisdiction.
Rapid response: The Bashaw Fire Department currently protects Pelican Point and Braseth Beach. Response times cannot meet urban standards because of the ten mile drive and the delay in calling out volunteers. In the future, when there are more lots and a bigger population in the growth node, it might be possible to set up a local volunteer department, but that is probably many years in the future.
A good supply of water: As noted above, the County intends to bring piped water to the growth node, but the rate of flow in the incoming line is unlikely to be adequate to fight a fire. It will be necessary to build a good size reservoir on site, and to pressurize the local distribution lines to give adequate flow and pressure at the hydrants. The water study for the growth node, as identified in the water supply section, should identify the increased system costs associated with providing fire protection to full urban standards. The County should investigate the best site for a reservoir, and protect it by purchasing the land in the near future. The first place to look is in the future commercial area.
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5.8 SOLID WASTE COLLECTION AND DISPOSAL
The Town of Bashaw’s contractor currently collects garbage from Pelican Point and trucks it to the regional landfill at Driedmeat Lake and curb side recycling pick up every two weeks. Local residents say that service is good and the cost is reasonable. If the town agrees, this arrangement should be continued. Whether this service would be continued for other areas within the North Shore Growth Node would be reviewed at the time of the development and would depend on the contractor’s capacity to add to this existing route and on the direction of administration and if Council.
At present residents pay the town directly for this service. Once there is a municipal water and sewer system in place, with monthly bills, it would be convenient if the cost of garbage collection could be tacked on to the water and sewer bill.
In the long term it may be necessary to build a waste transfer station close to the growth node. This could reduce the cost of pick-up by reducing the haul distance. It could also deal with items such as furniture, garden waste, and construction debris which are not picked up by normal door-to-door garbage collection.
5.9 SCHOOLS
Lakeside communities tend to be occupied by older families. It is unlikely that the Buffalo Lake north shore growth node will have many young children, so there will probably be no need for a school, and therefore no need to reserve a school site. The school board has stated that they will not want a school site in the North Shore Growth Node. Students in the area will be bussed in to Bashaw.
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North Shore Growth Node ASP WE File No. 23359.00 December 19, 2011
6.0 DESIGN CRITERIA
Once this area structure plan has been adopted, landowners will be free to prepare more detailed plans for their property showing the general scheme of development, roads and drainage, lot sizes, how water and sewer will be provided to the lots, and how the development will relate to surrounding lands. These outline plans must be accepted by Council, following a public hearing, before the land is rezoned for residential use.
This section sets out some of the ground rules for these more detailed plans.
Shoreline The Buffalo Lake Integrated Shoreline Management Plan (BLISMP) governs the use of the crown land adjacent to the lake. Developers should consult Alberta Sustainable Resource Development (SRD) if they wish to use, cross, or modify any Crown land. In particular, they are directed to sections 4.6(i), 5.4(i), and Appendix D of BLISMP, which set out the allowable uses on the various types of shoreline.
Wildlife Outline plans must identify key fish and wildlife habitat. In this regard, designers should consult the Alberta Fish and Wildlife Division' publication entitled Bird Populations on the Shoreline of Buffalo Lake: Identification of Priority Areas for Conservation (Alberta Species at Risk Report 115, 2007).
It may be necessary to create buffers between developed areas and key habitat.
Wetlands Outline plans must identify wetlands, and say how they are to be managed. Wetlands must not be filled or drained.
Reserves Reserves must be dedicated in the form of land. The County will not accept money in place of reserves, or take environmental reserve easements in place of dedication.
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North Shore Growth Node ASP WE File No. 23359.00 December 19, 2011
Clusters encouraged Developers are encouraged to create clusters of lots separated by undeveloped land.
Open land Outline plans must say how any undeveloped land is to be owned and used.
Density of development The number of lots allowed in each area must be no greater than shown on Map 7 and the table in Appendix A
Style of development If the developer intends to impose architectural controls, or restrictions on land uses over and above those contained in the County's land use bylaw, these should be identified in the outline plan.
Unwelcome styles It is expected that most development will take the form of single detached houses. Duplexes and low-rise multi-family housing may be acceptable. Apartments are not acceptable.
Incompatible uses Lots intended for permanent houses should be separated from lots which will be occupied by recreational vehicles.
Looped roads The main road though a subdivision should join the grid road at two points. This will provide another way in for emergency vehicles if one access is blocked.
Lake access Outline plans must show how residents will reach the lake shore.
Trail systems Developers are encouraged to create systems of walking trails. These trails should allow people to walk to the lake, and to access trails on other quarters.
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North Shore Growth Node ASP WE File No. 23359.00 December 19, 2011
Oil and Gas Outline plans must identify active and abandoned wells and pipelines, and follow ERCB rules on setbacks.
Settling ponds Runoff should normally be retained on site and allowed to soak in to the ground, depending on sub-soil conditions, instead of being channelled into the lake.
7.0 PLAN ADMINISTRATION AND IMPLIMENTATION
GENERAL Pursuant to the provisions of Section 633(1) of the Municipal Government Act, 1995, this Area Structure Plan shall be known as the North Shore Growth Node Area Structure Plan. All subdivision and development within the North Shore plan area shall be in accordance with the provisions and policies of this plan.
Council may, from time to time, choose to amend this Area Structure Plan. As part of the amendment process, the required public hearing process will ensure that the continued input of the landowners and adjacent residents is considered.
CHANGES TO THE MUNICIPAL DEVELOPMENT PLAN AND LAND USE BYLAW
Some of the policies set out in this area structure plan conflict with the more general rules in the municipal development plan (MDP) and land use bylaw. These set out rules for land use across the County. Some of these rules are not appropriate in the north shore growth node, so it will be necessary to amend both the MDP and the land use bylaw. Detailed changes, in the form of amending bylaws, will be submitted to the County directly, not as part of this ASP. They may be summarized as follows.
Changes to the MDP:
Section 3.3 This section should request the Natural Resources Conservation Board not to allow new confined feeding operations within one mile of the boundary of the growth node.
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Changes to the Land use bylaw:
Section 102 Add a definition of the Buffalo Lake North Shore Growth Node (required for 702)
Section 303 In most areas of the county, agricultural buildings do not need a development permit. This exemption should not apply inside or within half a mile of the growth node.
Section 607 This section of the bylaw sets out rules for sewage disposal close to recreational lakes. Those standards are inconsistent with the IDP and this area structure plan. The section must be re-written to make it clear that a higher standard is required inside the growth node.
Section 611 This section of the bylaw deals with intensive animal operations which are not regulated by the NRCB, but fall under County jurisdiction. Such operations should not be allowed in or within half a mile of the growth node.
Section 615 Under this section of the bylaw, a second residence may be allowed on any lot if it is for a family member who is over 65, or who requires continuing medical attention. This could lead to development in excess of the amount allowed by the IDP. Section 615 must be amended to remove the possibility of a second household (permanent RV, secondary suite, etc) on a lot inside the growth node.
Section 619 Secondary sites are allowed inside residences in many land use districts. As with 615, this could lead to higher densities than allowed by the IDP. The section must be amended to remove the right to a secondary suite in the growth node.
Section 622 This section regulates the use of holding tanks for sewage on larger parcels. It should be amended so that it does not apply inside the growth node.
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Section 702 The list of permitted land uses in the Agricultural district must be amended so that intensive livestock operations are not allowed inside or with half a mile of the growth node.
Section 707 Lake Resort zoning may be used for high density residential development in the growth node if secondary suites are not allowed, and some minor changes are made relating to the style of buildings allowed (manufactured homes, moved in buildings, use of RVs, etc). Alternatively, the County may wish to create a separate district (zoning) for the ASP area.
New section There is no district in the land use bylaw which allows the sort of medium density development foreseen in this ASP. A new district (zone) must be created.
New section There is a need for a new land use district where an RV may be parked permanently on a subdivided lot.
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North Shore Growth Node ASP WE File No. 23359.00 December 19, 2011
Appendix A Land Use Table
Buffalo Lake North Growth Node Allocation of Land Uses and Densities
All areas are approximate and are subject to correction at the time of subdivision
Quarter Serviced Serviced Campsite Campsite Unserviced Unserviced Commercial Utility ER & MR section acres lots acres stalls acres lots acres acres acres (1) (2) (1)
NE 7 52 156 5 NW 8 120 360 13 NE 8 33 100 4 NE 16 14 5 58 NW 16 74 24 83 SE 17 12 36 10 97 44 15 6 76 15 SW 17 69 23 75 16 SE 18 20 60 100 33 38 NW 18 103 34 47
Totals 237 712 10 97 404 134 6 151 279
Summary of old and new lots:
Number of lots allowed under IDP 1,227 Deduct number of lots at present (3) 284 Equals number of new lots allowed 943 943
New lots Serviced 712 Campsite 97 Unserviced 134 Total 943 943
(1) Campsite area also included in ER & MR total (2) Utility acres is the land for sewage plant, storage pond for treated effluent, and area for disposal by irrigation (3) Lots include camping stalls Amended 13 September
North Shore Growth Node ASP WE File No. 23359.00 December 19, 2011
Appendix B Buffalo Lake IDP Figure 5: Public Access
Stantec Consulting Ltd. 600, 4808 Ross Street Red Deer AB Canada Fi g u r e 5 T4N 1X5 Fi g u r e 5 Tel: 403.341.3320 Fax: 403.342.0969 Public Access www.stantec.com
53 CAMROSE COUNTY E
7 6 ^_ 56 21 ^_ LACOMBE COUNTY ^_8 ^_5
Lake Bend Rd. ^_4 BUFFALO LAKE ^_3 Hamlet 11 of Mirror 2 ^_ ^_ 9 12 ^_ Legend (refer to Section 3.3 in plan) ^_ 10 SUMMER VILLAGE 1 ^_ OF WHITE SANDS ^_ SUMMER VILLAGE OF ^_ Existing Access ROCHON SANDS ^_13 ^_ Potential Access ^_ Potential Winter Only Access Twp. Rd. 402 Provincially Owned Lake ROW
Water 21 Growth Node
835 Limited Development Area Rge. Rd. 200 Rge. Rd. 202
Rge. Rd. 221 Provincial / Public Land
601 COUNTY OF STETTLER No. 6 Municipal Boundaries
Plan Boundary Rge. Rd. 212
BUFFALO LAKE INTERMUNICIPAL DEVELOPMENT PLAN 00.5 1 2 3 4 5 Kilometers M a y , 2 0 1 0
500m