Athabasca County Municipal Development Plan
September 13, 2016 Final Draft Bylaw No. 013-2016
Submitted by: Submitted to:
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ACKNOWLEDGEMENTS
Municipal Planning Commission:
Planning & Development: Jesse Ajayi, Director of Planning & Development Elaine Leeuw, Subdivision and Development Officer
Consulting Team: Armin Preiksaitis, President Wayne Jackson, Senior Associate Karolina Drabik, Senior Planner
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TABLE OF CONTENTS
PART I | CONTEXT 9 1.0 Introduction 11 1.1 Nature of a Municipal Development Plan 12 1.2 Enabling Legislation 12 1.3 How the Municipal Development Plan was Developed (Planning Process) 14 1.4 Scope and Direction of Plan 15 1.5 Plan Organization 16 1.6 Plan Terminology 17 1.7 Plan Amendment 18 2.0 Regional Context and Emerging Trends 19 2.1 Regional Context 19 2.2 Historical Development 20 2.3 Population Growth and Change 20 2.4 Economic Development and Employment Growth 22 2.5 Population Growth Forecast 22 3.0 Vision Statement, Strategic Direction and Growth Management Strategy 25 3.1 Vision Statement 25 3.2 Strategic Direction 25 3.3 Growth Management Strategy 26 PART II | LAND USE PLANNING AND DEVELOPMENT 27 4.0 Agriculture and Rural Development 29 4.1 Background 29 4.2 Objectives 31 4.3 County Planning Policies 31 5.0 Residential Development 37 5.1 Background 37 5.2 Objectives 38 5.3 Rural Residential Subdivision and Development 38 5.4 Country Residential (Multi-lot) Subdivision and Development 40 5.5 Work Camps 43 6.0 Hamlet Development 45 6.1 Background 45 6.2 Objectives 46 6.3 County Planning Policies 46
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7.0 Commercial and Industrial Development 49 7.1 Background 49 7.2 Objectives 50 7.3 County Policies 50 7.4 Resource Extraction Industries 56 8.0 Lakeshore Management Policy Area 59 8.1 Background 59 8.2 Objectives 61 8.3 County Policies 61 PART III | ENHANCING COMMUNITY 69 9.0 Environmental Management 71 9.1 Background 71 9.2 Objectives 72 9.3 County Policies 72 10.0 Parks, Open Space and Recreation 79 10.1 Background 79 10.2 Objectives 79 10.3 County Planning Policies 80 11.0 Recreational Vehicles and Recreational Vehicle Parks 85 11.1 Background 85 11.2 Objectives 86 11.3 County Policies 86 12.0 Transportation and Utility Infrastructure 89 12.1 Background/Intent 89 12.2 Objectives 90 12.3 County Planning Policies 90 13.0 Community Culture and Heritage 95 13.1 Background 95 13.2 Objectives 95 13.3 County Policies 96 14.0 Intermunicipal and Intergovernmental Cooperation 99 14.1 Background 99 14.2 Objectives 100 14.3 County Policies: Planning Co-operation with the Town of Athabasca and the Village of Boyle 100 14.4 County Policies: Planning Cooperation with Summer Villages 102 14.5 County Policies: Planning Cooperation with Adjacent Municipalities 103
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14.6 County Policies: Planning Cooperation with the Province of Alberta 103 PART IV | IMPLEMENTATION 105 15.0 Implementation 107 15.1 Background 107 15.2 Objectives 107 15.3 County Implementation Policies 108
REFERENCES List of Figures Figure 1—Hierarchy of Planning Instruments in Athabasca County 16 Figure 2—Rural Residential Subdivision 40 Figure 3—Cluster Subdivision Design 42
List of Tables Table 1– Public Participation Opportunities 15 Table 2—Population Change 21 Table 3—Sex Profile 21 Table 4—Seniors’ Population Growth 22 Table 5—Population Forecast 23 Table 6– County Agricultural Data 30 Table 7—Development Capacity Estimates for Serviced Hamlets 46
List of Maps Map 1—Regional Context Map 2— Land Use Policy Areas Map 3—Environmental Management Map 4—Crown Land
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PART I — CONTEXT
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1.0 Introduction
Athabasca County is located in the Boreal Region of north central Alberta and is within Canada Census Division No. 13. The County is within the Athabasca River basin; a part of the County’s boundary is the Athabasca River. With a total population of 7,665 (2011), the County has a population density of 1.3 persons per square kilometer, typical of Alberta’s northern rural municipalities. County offices and public works facilities are located in the Town of Athabasca. The County covers a land area of 6,123 square kilometers with a varied landscape consisting primarily of agricultural lands, forested areas and numerous lakes. The lowest elevations occur in the Athabasca River Valley and the highest are in the southern part of the County. There are 2 urban municipalities (Town of Athabasca and Village of Boyle), 8 summer villages and 11 hamlets located within Athabasca County. Towns, villages and summer villages are incorporated municipalities. Hamlets are unincorporated communities within a rural municipality that by definition have both residential and non-residential land uses and are within the County’s jurisdiction. The largest hamlets (2011 Canada Census population) are Colinton (274), Rochester (101), Wandering River (120) and Grassland (117). There are no First Nation Reserves within Athabasca County. Buffalo Lake Métis Settlement is located on the southeastern County boundary, south of the Hamlet of Caslan. Similar to many northern Alberta rural municipalities, Athabasca County has a substantial amount of Crown Land, estimated at approximately one-third of the land base.
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1.1 Nature of a Municipal Development Plan A Municipal Development Plan (MDP) is a statutory planning document that articulates an Alberta municipality’s land use vision, goals, objectives and policies and guides growth and development over the long term. An MDP is general in nature and provides an overall desired future vision for the municipality. The Athabasca County MDP is the overarching policy document that will guide the County’s physical development and will have implications on its social, environmental and economic well-being. It has been developed with a 20 year time frame in mind. Land use planning covers a broad spectrum of subject areas and overlaps with fields such as economic development, environmental management and infrastructure provisions. The Athabasca County MDP recognizes the municipality’s initiatives in other policy and legislative areas. The MDP is one of a series of plans that can be adopted by a municipality. An Area Structure Plan (ASP) is an area-specific plan while an Intermunicipal Development Plan (IDP) is a joint planning effort between two or more municipalities. 1.2 Enabling Legislation 1.2.1 Municipal Government Act 632 (3) A municipal development plan (a) must address (i) the future land use within the municipality, (ii) the manner of and the proposals for future development in the municipality, (iii) the co-ordination of land use, future growth patterns and other infrastructure with adjacent municipalities if there is no intermunicipal development plan with respect to those matters in those municipalities, (iv) the provision of the required transportation systems either generally or specifically within the municipality and in relation to adjacent municipalities, and (v) the provision of municipal services and facilities either generally or specifically, (b) may address (i) proposals for the financing and programming of municipal infrastructure, (ii) the co-ordination of municipal programs relating to the physical, social and economic development of the municipality, (iii) environmental matters within the municipality, (iv) the financial resources of the municipality,
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(v) the economic development of the municipality, and (vi) any other matter relating to the physical, social or economic development of the municipality, (c) may contain statements regarding the municipality’s development constraints, including the results of any development studies and impact analysis, and goals, objectives, targets, planning policies and corporate strategies, (d) must contain policies compatible with the subdivision and development regulations to provide guidance on the type and location of land uses adjacent to sour gas facilities, (e) must contain policies respecting the provision of municipal, school or municipal and school reserves, including but not limited to the need for, amount of and allocation of those reserves and the identification of school requirements in consultation with affected school boards. 1.2.2 Alberta Land Use Framework/Land Use Policies The Alberta Land Use Framework (LUF) is a provincial planning initiative established in 2009 to complement the adoption of the Albert Land Stewardship Act (ALSA). The purpose of the LUF is to manage growth and to sustain the province’s growing economy, balancing it with Alberta’s social and environmental goals. The LUF sets out an approach to manage public and private lands and natural resources to achieve long-term economic, environmental and social goals. It provides a blueprint for land use management and decision-making that addresses Alberta’s growth pressures. The LUF consists of 7 basic strategies:
Strategy 1: Develop 7 regional land use plans based on seven new land use regions.
Strategy 2: Create a Land Use Secretariat and establish a Regional Advisory Council for each region. Strategy 3: Cumulative effects management will be used at the regional level to manage the impacts of development on land, water and air. Strategy 4: Develop a strategy for conservation and stewardship on private and public lands. Strategy 5: Promote efficient use of land to reduce the footprint of human activities on Alberta’s landscape Strategy 6: Establish an information, monitoring and knowledge system to contribute to continuous improvement of land use planning and decision-making. Strategy 7: Inclusion of aboriginal people in land use planning.
The preparation and adoption of 7 Regional Land Use Plans by the Province is a key component of the LUF. Athabasca County is part of the Upper Athabasca Regional Plan (UARP) region, a large area stretching from Athabasca County in the east to Jasper
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National Park in the west. The purpose of the UARP will be to create a basis for better management of land and natural resources to achieve provincial long term environmental, economic and social goals. Municipal representatives will play a role in plan preparation. Once the UARP is approved by the Provincial Government, municipalities within the Upper Athabasca Region will be given a certain period of time to ensure that municipal plans are consistent with the regional plan. As of March 2016 the preparation of the UARP had not been scheduled. The Athabasca County MDP has been prepared to be consistent with the general provisions of the LUF, paying particular regard to Strategy 5 which seeks to minimize the amount of land that is taken from undeveloped or extensive use and placed in permanent use for residential, commercial, industrial, transportation, utility corridors, or intensive recreation purposes. The guiding principle for Strategy 5 is “land use decisions should strive to reduce the human footprint on Alberta’s landscape.” In 1996 Alberta adopted the Land Use Policies (LUP) providing general direction to municipal planning documents. The Regional Land Use Plans are replacing the LUP over time. The Athabasca County MDP has been prepared consistent with the 1996 LUP. 1.3 How the Municipal Development Plan was Developed The Athabasca County MDP is a strategic policy document intended to guide growth and development over the next 2 decades. It builds on and reflects the visions, goals and objectives of County Council and residents’ input gathered during the plan preparation period. In addition to the Athabasca County 2002 Municipal Development Plan, the following plans and studies prepared in the intervening years informed the content of the 2016 MDP and the growth and development policies of Athabasca County: • Fire Smart Community Mitigation Strategy Update (2010) • Alberta Energy Corridor (AEC) Land Use Strategy Report (2012) and Background Report and Opportunity Study (2010) The planning process for the review and update of the Municipal Development Plan included technical analysis and input from a variety of stakeholders. The following describes the consultation activities that were undertaken during the 2015 plan preparation period. As part of the project start-up process notification letters providing project information and seeking input were sent to: • the 7 municipal districts that border Athabasca County; • the Town of Athabasca, the Village of Boyle and the 8 Summer Villages within the County; • Alberta Government departments including Alberta Transportation, Alberta Energy Regulator, and Community Health Services; • Aspen View School Board and Northern Lights School Division; • Alta Gas, ATCO Gas, Lac la Biche Natural Gas Co-op, Fortis, Pembina Natural Gas Co-op, and the Aspen Regional Water Services Commission (ARWSC). A Public Consultation Program was carried out from March to June 2015. The specific 14 of 110 objectives were to identify land use issues, contribute to defining a long term vision for the County; and acquire input into preferred planning strategies. Residents and stakeholders responded to 5 topic themes – population growth and settlement patterns, agricultural use, commercial/industrial development, parks/open space and recreation, and the environment, with respect to long range priorities and a future vision, as well as land use bylaw issues. A variety of methods were used to collect input into the plan:
Table 1: Public Participation Opportunities Method & Date Participants Project Start-up meeting with Staff (February 2, 2015) 3 Internal Stakeholder survey (March 2015) 5 Municipal Planning Commission Workshop (March 24, 2015) 12 Public Open Houses/Workshops in Wandering River, Boyle and 86 Town of Athabasca (April 21, 22, and 30, 2015) Key Stakeholder Interviews ( April 22 and 30, 2015) 5 Input Received from Adjacent Municipalities 6 Input from Public (letter or e-mail) 11 On-line Survey ( May – June 2015) complemented by letter in- 243 cluded with tax notices Public Open Houses held in Five Communities, April 2016, 30-60 at each
1.4 Scope and Direction of Plan Athabasca County has a long history of land use and community planning. A General Municipal Plan was adopted in 1982. Numerous planning projects related to lake development capacities were carried out in cooperation with Alberta Municipal Affairs and Alberta Environment in the 1980’s. This MDP is replacing the 2002 edition. Since that time substantial changes to the land use and development landscape have taken place and new planning policies and practices have emerged. The 2016 MDP is intended to represent current municipal planning direction, respond to changing economic factors, and reflect County residents’ 2016 perspective. The 2002 MDP policies that continue to be relevant have been integrated into the new statutory plan. Care has been taken to limit the potential impact on landowners who had previously been granted development approval. The MDP is one of a series of statutory plans adopted by Athabasca County. Figure 1 – Hierarchy of Planning Instruments illustrates what plans and planning processes manage the County’s growth and development. To ensure effective implementation, consistency between the MDP, IDPs, ASPs and the LUB has been sought. The MDP is organized along broad land use categories, addressing the key subject areas brought forward during the consultation process and reflecting County priorities. A land use focus allows the County to adopt a variety of municipal development and planning policies. The MDP is designed to establish County planning policies and to guide County
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Figure 1: Hierarchy of Planning Instruments in Athabasca County
planning decision-making; the MDP map establishes the County’s planning direction by delineating “predominant land use areas.” The MDP is not intended to duplicate the LUB or result in a zoning map, both of which provide specific development standards and regulations for each type of development. MDP policies are either regulatory or enabling in nature – ‘regulatory policies’ direct decision makers when making future planning decisions while ‘enabling policies’ recommend a plan of action (see also Section 1.6) 1.5 Plan Organization The Municipal Development Plan has been organized into 4 major parts. PART I – CONTEXT This part highlights the purpose, planning process and legal basis for the Athabasca County Municipal Development Plan (2016). It also summarizes the planning framework for the MDP review and outlines the Vision, Strategic Direction and Growth Management Strategy that shaped policy development. PART II – LAND USE PLANNING AND DEVELOPMENT This part addresses the themes that are central to Athabasca County’s long term land use planning and future development. Firstly, the County is divided into 2 major policy areas, Agriculture Policy Area and Rural Development Policy Area. Planning policies and strategies for each area are developed on a County-wide basis. This is followed by the establishment of planning policies intended to guide the 4 major types of land use change
16 of 110 that the County experiences - residential growth, commercial and industrial activity, and hamlet development. A third policy area, the Lakeshore Management Policy Area, is established and delineated to address planning and development issues that are present in the areas surrounding many of the County’s lakes. In each policy area planning objectives are explained and the municipal policies adopted by Council to inform, direct and guide County decision-making and planning practices. In many instances the policies also drive the regulatory content of the County’s LUB. PART III – ENHANCING COMMUNITY This part brings forward overarching policies that, rather than being area-specific, address growth and development matters across the entire County, all of which relate to the quality of life of County residents, the sense of community, and the health of the natural landscape. Five subject areas are addressed: (1) Environmental Management. (2) Parks, Open Space and Recreation, including Recreational Vehicles and Recreational Vehicle Parks (3) Transportation and Utility Infrastructure; (4) Community, Culture and Heritage; and (5) Intermunicipal and Intergovernmental Cooperation. PART IV – IMPLEMENTATION This part describes the approaches that the County will be utilizing to implement the policies and strategies contained in the MDP and summarizes the actions the County intends to take in the upcoming years. 1.6 Plan Terminology The MDP contains Athabasca County’s land use planning policy statements. Compliance with the policies is to be interpreted and applied as follows: SHALL – means mandatory compliance. Actions by Municipal Planning Commission, Subdivision/Development Authority, Administration and landowners/developers must be consistent with MDP policy. Actions of the Subdivision and Development Appeal Board must have regard to the Plan policies consistent with Municipal Government Act provisions. SHOULD – means compliance in principle and/or a preferred course of action subject to discretion on the part of the Municipal Planning Commission, and Subdivision/ Development Authority where compliance is impracticable or undesirable because of valid planning principles or circumstances unique to a specific application. WILL – applies to a path or an action that the County plans to undertake in the future that may or may not result in a specific planning policy. MAY – means the specific policy can be applied, enforced or implemented if the County chooses to do so; application may depend on site specific circumstances. SUPPORT(S) – an indication that the County is generally in agreement with a policy or initiative and is willing to pursue implementation. ENCOURAGE(S) – an indication that the County is generally in agreement with a policy or initiative and would like a stakeholder to pursue implementation. The Municipal Development Plan is a comprehensive document; policies in one section are often related to policies in another section. It is recommended that the reader review the entire document and not read specific sections or policies in isolation. All figures are
17 of 110 conceptual; designs will be refined at the area structure plan or redistricting stage of development approval process. The headings in the left hand margin are intended to assist the reader by highlighting the corresponding policy statements, and are not to be interpreted as plan policies. 1.7 Plan Amendment County flexibility in long range planning is required as changes to the rural and regional economy take place and new planning trends emerge; the MDP is designed to minimize the number of amendments that may be required. However, certain amendments will likely be required from time to time, especially when policy area boundaries are being proposed for adjustment or when new site-specific policies are introduced. Plan amendments require notification pursuant to the provisions of the Municipal Government Act. Opportunities for public consultation such as open houses and community meetings will be ensured by the County, depending on the magnitude of the potential impact of the amendment.
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2.0 Regional Context and Emerging Trends
2.1 Regional Context Athabasca County benefits from a variety of economic activities. Although agriculture remains the principal economic driver, the development of natural gas fields and the forestry sector has had a major impact on the County’s economic development. According to the 2011 federal census, the leading industry categories in terms of labour force numbers were (1) agriculture, forestry, fishing and hunting; (2) construction; and (3) educational services. Strategically located along Highways 2, 55 and 63, Athabasca County serves as the gateway to Alberta’s 3 oil sand areas – the Athabasca Oil Sands, Peace River Oil Sands, and Cold Lake Oil Sands and functions as a service hub for the industrial activity taking place in both the Fort McMurray and Wabasca regions. The Athabasca Oil Sands extend southwards from Fort McMurray towards Athabasca County. While there are no oil sands projects within the County, there is substantial spin-off activity including increased work camp populations, resource extraction related industries such as fabricators of products destined for oil sands projects, pipeline construction and highway commercial activity. Industry is attracted by affordable land values, transportation access, and a stable labour force. As new oil and gas and oil sands activity is proposed and new technologies advance oil sand extraction techniques, economic growth is forecast to continue, although the level of growth may be reduced during periods of economic downturn.
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Forestry activity is focused on the Alberta Pacific Forest Industries Inc. (Al-Pac) mill and operations in the areas northeast of the Town of Athabasca and northwest of Boyle. The Al -Pac Forest Management Area covers a substantial area of Crown land within the County. Tourism and recreational activities are key components of the County’s economy driven by the recreational demand for the County’s lakes located both east of Boyle and west of the Town of Athabasca. An estimated one-third of Athabasca County is owned by the Crown; large blocks of Crown Land are located in the central, eastern and northeastern regions. Some Crown land quarter sections are leased for agriculture purposes while many others are reserved for resource exploration and development or forestry activities. 2.2 Historical Development Historically a home to First Nations people, Athabasca County has been transformed over more than a century into a thriving agriculture-based region and, more recently, into the home for resource extraction industries and an economic corridor to northern energy projects. The County of Athabasca was formed in 1959 by combining the Athabasca School Division No. 42 and the Municipal District of Athabasca No. 103. The name Athabasca County was officially adopted in 2009. In the 1870’s, the Hudson’s Bay Company hoped to acquire alternative routes to send goods north in response to impassability of existing trade routes. Athabasca Landing was born out of this scouting for new trade routes and a freight trail 100 miles long was developed from Fort Edmonton in 1876. Athabasca Landing was transformed by European immigration and westward expansion from a First Nations meeting place into a Hudson’s Bay trading post. The Town of Athabasca has been fondly referred to as the “Gateway to the North” due to its key role as a service and transportation hub for freight and pioneers between 1880 and 1914. Population growth also resulted from activities related to the Klondike Gold Rush (1897-1899). Early in the 20th century the Town of Athabasca was proposed as the site for the new Alberta capital. This resulted in the creation of thousands of lots for residential purposes both in the Town and in the County. The 1950’s and 60’s saw substantial population growth related to increased activity in the oil and gas industry. This trend continued with natural gas wells spurring population growth until the 1980’s when the population stabilized. More recently, forestry has also been a major economic driver in the region. Construction of Al-Pac located in the central part of the County began in 1991 and the mill began producing pulp in 1993 creating many job opportunities and attracting a wave of new residents. Currently Athabasca County continues as a service hub for industrial development that is taking place in both the Fort McMurray Region (Athabasca Oil Sands) to the northeast and the Wabasca Region (Peace River Oil Sands) to the northwest. 2.3 Population Growth and Change The County relies on the Census of Canada to track its population numbers. The table below highlights the population growth for each 5-year census period since 1991 and compares the County’s population growth to that of rural Alberta. 20 of 110
Table 2: Population Change Year Athabasca Athabasca County AB Rural AB Rural Population County (% change from Population (% change from previous census) previous census) 2011 7662 +1.2% 614,855 +4.1% 2006 7572 +1.2% 590,499 +3.7% 2001 7521 +0.9% 569,647 +2.8% 1996 7450 +12.5% 554,011 +7.6% 1991 6621 +1.2% (1986-91) 514,660 +5.4% (1986-91) Source: Statistics Canada Federal Census, 1991 – 2011
The population of Athabasca County has exhibited limited growth over the 1996 to 2011 period, preceded by a major growth spurt in the 1991 to 1996 period. The latter was associated with increased investment in resource extraction industries and the fact that production began at the Al-Pac in 1993. The 1996 to 2011 growth rate is somewhat lower than that exhibited by Alberta’s rural population in total. In general, the population of Athabasca County is employed in agriculture, forestry, mining and oil and gas extraction industries. These industries are catalysts for continued population increase, both permanent and temporary. A 2005 research project by the Northern Alberta Development Council quantified the County’s shadow population (people working in the County and residing there on a temporary basis) at 612. The shadow population is not included in the official population count. Even though there are no First Nation reserves within the boundaries of Athabasca County, the County has a rich Aboriginal history. According to Statistics Canada 8.1% of the 2011 population had an Aboriginal identity. The majority of the Athabasca County population is Canadian born (96% - 2011 census) compared to 80.3% for Alberta. The County’s population analysis shows that the number of males noticeably exceeds the number of females; no impact on planning and development policies is foreseen.
Table 3: Sex Profile
Sex Profile (2011) Male Female Alberta 1,827,815 1,817,440 Athabasca County 4,030 3,635
Source: Statistics Canada Federal Census, 2011
A notable population trend in Athabasca County and across Alberta is the aging of the population marked by an increase in the over 65 age cohort, both absolutely and relatively. In 2011, the County’s “senior citizen” residents made up 14.6% of the total population, compared to 12.8% in 2006. This increase in the age demographic is a recurring pattern seen in the last 4 federal census data sets suggesting that Athabasca County has a generally aging population. This transition is complemented by a decrease in proportion of residents in the 0-14 age group, although not necessarily by a decrease in the absolute numbers of young people. Additionally, the 2011 Canada Census indicated 21 of 110 that residents of Athabasca had a median age of 43.2 while the median age for all Albertans was 36.5 years. This trend is paralleled by an overall decline in the percentage of Alberta’s total population living in a rural setting over the past 20 years (1991: 20%; 2011: 17% – Statistics Canada). The trend has its roots in the birthrate decline which began in the 1970’s. This “aging” trend may have significant impact on development including the potential for increased out-migration by seniors and an increased demand for a variety of housing types, as well as extended medical facilities and support services. Table 4: Seniors’ Population Growth
Seniors’ Population Growth (65+) Year 2001 2006 2011 % Change 2001 - 2011 Athabasca 840 965 1,120 +33.3% County (11.1%)* (12.7%)* (14.6%)* Alberta 308,400 353,410 405,725 +31.5% (10.3%)* (10.7%)* (11.1%)* * As a percent of total population for that year Source: Statistics Canada Federal Census, 2001-2011
2.4 Economic Development and Employment Growth Economic activity in Athabasca County is characterized by employment in agriculture, natural gas, forestry and tourism. Although agriculture remains the principal economic driver, the development of gas fields has had a major impact on the County’s economic development. Athabasca County is the gateway to the three oil sand areas – the Athabasca, Peace River and Cold Lake Oil Sands. The Athabasca Oil Sands extend southwards from Fort McMurray towards Athabasca County. Oil sands projects are key catalysts for increased work camp populations and employment growth in the County. Additionally, workers passing through the County en route to the oil sands projects have an impact on the County economy. The geographical context of Athabasca County makes it an ideal location for resource extraction-related industries such as fabricators of products destined for oil sands projects. These types of industry have been successful in providing local employment opportunities. Industry is attracted by affordable land values, transportation access, and a stable labour force. As new wells are proposed in various areas of the County and in the in the oil sands regions and new technologies advance oil sand extraction techniques, economic growth is forecast to continue. 2.5 Population Growth Forecast An estimate of future population levels provides a backdrop for the establishment of planning policies for a rural municipality as well as an urban one. To project population growth for Athabasca County a high growth rate of 5%, a medium growth rate of 3% and a low growth rate of 1% were assumed for each of the five-year growth periods to 2036. These assumptions were based on the historical growth rates which, as noted in Section 2.3, were relatively low.
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Table 5: Population Forecast
10000
9500
9000
8500
8000
7500
7000 2011* 2016 2021 2026 2031 2036 Low (+1%) 7662 7738 7815 7893 7971 8051 Medium (+3%) 7662 7891 8127 8370 8621 8879
High (+5% 7662 8045 8447 8869 9312 9777 * actual for 2011, Source: Statistics Canada Federal Census, 2011
For the purposes of the MDP, the low to medium growth rate scenario is the most relevant forecast to consider as policies are developed. The high growth rate scenario would require a significant investment in industry similar to that of the 1990’s Al-Pac forestry related growth.
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3.0 Vision Statement, Strategic Direction and Growth Management Strategy
The MDP’s Vision Statement, Strategic Direction and Growth Management Strategy provide the framework for the preparation of planning policies and a basis for future planning decisions by County Council and Administration. These planning principles reflect the integrated perspective of County Council and County residents and have been prepared to complement the County’s Mission Statement: ATHABASCA COUNTY MISSION STATEMENT: Athabasca County is dedicated to providing an excellent level of municipal service, while treating residents and ratepayers with fairness dignity and respect; and keeping taxes at a reasonable level. 3.1 Vision Statement Athabasca County, benefitting from a rural lifestyle and a strong sense of community, provides a wide range of residential, commercial, industrial, institutional and recreational development opportunities complemented by a high level of infrastructure and services, with a planning focus on agricultural preservation and environmental stewardship. 3.2 Strategic Direction A diversified economic base contributes to the County’s ability to provide a high level of municipal services and increased employment possibilities for local residents; County 25 of 110 development is best served by a focus on a combination of economic development, agricultural preservation and environmental stewardship. The County will strive to: • Strengthen residents’ quality of life in hamlets and rural areas with a focus on privacy, community cohesion, attractiveness, health and safety. • Increase the amount and variety of housing with a focus on hamlet development and the provision of a variety of housing options for seniors. • Preserve better agricultural land for future generations, and support a variety of agricultural operations. • Build on the region’s “natural assets” including the proximity to natural landscapes and views ensuring the health of regional and local ecosystems. • Support a balanced approach to development encouraging rural, commercial and industrial, and recreational uses at appropriate locations and where required utilizing planning tools such as mixed land use and buffering to minimize any potential land use conflict. • Address shared community planning and infrastructure challenges through partnerships with municipal neighbours and cooperative efforts with government departments and agencies and local interest groups. 3.3 Growth Management Strategy Growth management is the process of accommodating growth and change in the municipality while directing land use patterns in a manner that contributes to and works toward making the municipality’s vision a reality. It also seeks to ensure that a high quality of life is maintained while considering impacts on the natural environment. A lack of coordinated growth management can lead to land use conflicts and inefficient servicing patterns which may in turn compromise the County’s ability to optimally allocate funds for capital improvements and upgrades. Managing future growth and development in Athabasca County follows an approach that balances the Strategic Priorities with public and private interests. Building on Athabasca County’s strengths – its natural landscape, rural lifestyle, social capital and economic opportunities; growth will be managed with the intent of ensuring a prosperous future for all County residents and businesses supported by a strong policy framework. The planning policies adopted as part of the plan are either regulatory, enabling or action-oriented in nature.
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PARTPART IIII —— LANDLAND USEUSE PLANNINGPLANNING ANDAND DEVELOPMENTDEVELOPMENT
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4.0 Agriculture and Rural Development
4.1 Background Agriculture in Athabasca County is the central component of the area’s history and settlement. County data (2015) indicates that of the more than 1.1 million acres assessed, 284,600 acres are assessed as arable and 803,196 acres as pasture (both improved and may be cultivated) and native (not cultivated). Agriculture in Athabasca County is experiencing similar trends and pressures as are taking place across Alberta and the Prairies. Since 2001, the number of farms declined from 960 to 697 in 2011 (Statistics Canada), approximately 28%. The most recent data on average farm size is from 2006 when the County average was 765 acres; data from 2011 shows that 461 of the 697 farms were greater than 240 acres in size. These statistics are indicative of a wider trend towards agri-food that is characterized by larger but fewer agricultural operations. Among the local agricultural pressures are: impact of energy and natural resource activities; changing economics of agricultural markets; changing provincial and federal legislation; new technology; and continued demand for country residential and recreational properties in agricultural areas. Agriculture continues to be economically important to the County as expressed by residents during the MDP consultation program. Residents support the continued growth, intensification, and development of the agricultural sector. There is also a growing interest in locally grown food and production. Land use planning opportunities exist to ensure that
29 of 110 municipal policies and regulations support a wide variety of type and scale of operations from large commercial farms to community-based gardens in a changing global economy. Table 6: County Agricultural Data
2015 County Agricultural Data
Total area assessed including crown lands assessed a farm values 1,104,923
Acres assessed as arable 284,600
Acres assessed as pasture, including improved and native 803,196
Acres assessed as waste/ zero rating 17,127
Acres rated at 40% above agricultural productivity rating 134,498
Acres rated as arable 118,695
* Source: Athabasca County
For the purposes of planning and development municipalities have historically identified/ evaluated agricultural potential of a particular area of land by using a capability rating based on the Canada Land Inventory (CLI) for agriculture. CLI is a comprehensive multidisciplinary land inventory carried out by the Government of Canada in the 1960’s, 70’s and 80’s. The CLI classification shows the varying potential of a specific area for agricultural production and provides a sound basis for planning policy formulation. There are 7 soil capability classes according to the potential for the production of field crops with Class 1 being the best soils having no significant limitations. Athabasca County has traditionally used CLI Class 4 and above as one of two key indicators of “better agricultural land.” Class 4 might be categorized as “marginal” in some areas of the Province; however, with a limited amount of Class 2 and Class 3 land, Class 4 has been and continues to be regarded as “better agricultural land” by Athabasca County. In addition, the County has found that pockets offering agricultural potential exist within lands classified as Class 5. Municipal planning decisions are most often made on a quarter section basis. The soil classifications provided by the CLI Map for specific quarter sections are generalized and as such provide only a broad perspective. Improved farming methods have reduced the reliability of the CLI classification as the sole indicator of “better agricultural land.” The County has found that the farmland assessment productivity rating to be a more reliable indicator when evaluating the agricultural value of specific quarter sections. In accordance with Alberta legislation, farmland is assessed based on its productive value - it is rated based on its ability to produce income from raising livestock and/or growing crops. The productive value of farmland is determined by assigning a value for the best soils and then making adjustments for less than optimum conditions such as stones, the presence of sloughs or topography not conducive to farming practices. The consultation program revealed that residents support alternative land use activities such as commercial and industrial development in appropriate areas, especially in areas of limited agricultural value. The County will continue to use a two-element approach (CLI)
30 of 110 classification and assessment productivity) to review and integrate the location of “better agricultural land” and “marginal agricultural land” as the following objectives and policies are being pursued. 4.2 Objectives The objectives of Agriculture and Rural Development policy areas are to: • Support agriculture as both an industry and a way of life valued by Athabasca County residents. • Maintain long term viability of the agricultural land base throughout the County with a focus on areas of “better agricultural land” while allowing for a variety of non- agricultural land use and development with a focus on areas of marginal agricultural land. • Minimize the loss of better agricultural land to non-agricultural uses; limit fragmentation and subdivision of better agricultural land. • Provide opportunities for commercial and industrial development in appropriate locations. • Provide opportunities for residential development and country living at appropriate locations. • Minimize potential land use conflicts between agricultural operations (including confined feeding) and residential and non-agricultural uses. • Limit the impact of agricultural operations on the natural environment. • Support the growth and diversification of both extensive and intensive agriculture. • Designate areas where the development of new or expanded confined feeding operations would not be appropriate. 4.3 County Planning Policies
4.3.1 Establishment of Athabasca County establishes the Agriculture Policy Area as Agriculture Policy shown on Map 2. The Agriculture Policy Area represents Area lands that are classified as CLI Class 1 to 4. (see 4.1 for explanation of Canada Land Inventory classification). The County supports agriculture as the predominant land use in the Agriculture Policy Area. 4.3.2 Establishment of Athabasca County establishes the Rural Development Policy Rural Development Area as shown on Map 2. The Rural Development Policy Policy Area Area represents land classified as CLI Class 5 to Class 7. The County supports a variety of compatible land use and development activities, including agriculture, in the Rural Development Policy Area. 4.3.3 Purpose The delineation of the Agriculture Policy Area and the Rural Development Policy Area and the establishment of related planning policies have a two-fold purpose: to conserve the County’s agricultural land base while allowing for a variety of agriculture related and non-agricultural development to take place at appropriate locations throughout the County.
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4.3.4 Land Use Change Athabasca County supports locating uses that are not dependent on better agricultural land on marginal land in the Rural Development Policy Area. Applications for land use change from agriculture to a more intensive use shall be supported by appropriate technical studies as required by the County including an analysis of agricultural land quality. 4.3.5 Re-districting If an area of land in the Agriculture Policy Area or the Rural Development Policy Area is proposed for conversion from an agricultural use to a non-agricultural use such as commercial, industrial, recreational or multi-lot country residential, an amendment to the Land Use Bylaw District Map will normally be required prior to an approval of a related subdivision or development application. 4.3.6 Re-districting In reviewing proposals for the conversion of land in the Evaluation Criteria Agriculture Policy Area or the Rural Development Policy Area to a more intensive use the County shall have regard to the following (see also 4.3.4): a. Whether the land in question is within Agriculture Policy Area or Rural Development Policy Area keeping in mind the predominate land use of each policy area (see 4.3.1); b. The land’s Canada Land Inventory (CLI) classification; c. The land’s farmland assessment productivity rating: the land shall be considered to be better agricultural land if 65% of the area has a productivity rating of 40% or higher; d. Whether the parcel is severed by a physical feature; and e. Whether the proposed development might give rise to conflicts with adjacent agricultural uses. 4.3.7 Right to Farm Consistent with the provisions of the Agricultural Operations Practices Act (AOPA) as amended, when agricultural land is being proposed for non-agricultural use, subdivision or development the County shall provide notice to applicants stating that the primary use in the area is agriculture, that agricultural uses take precedence over other land uses, and that non-agricultural uses are expected to function within an agricultural environment. 4.3.8 Agri-Business The County supports the growth of primary and secondary agricultural production and processing in the Agriculture Policy Area and the Rural Development Policy Area in locations that are accessible, serviced or serviceable, will not impact agricultural operations, and are not located in environmentally significant areas. Such uses include market gardens, greenhouses, berry farms, nurseries and minor storage and service businesses. 32 of 110
4.3.9 Land Use Bylaw The location and intent of the Agriculture Policy Area and the Rural Development Policy Area shall form the basis of the Agriculture District and the Rural District in the County’s LUB. The Rural District shall include a wider scope of non- agricultural development opportunities. 4.3.10 Subdivision of Land The County supports limiting the number and size of parcels to protect better agricultural land and sustain rural settlement. The subdivision of land shall accommodate only those uses that are listed as Permitted or Discretionary Uses in the associated district in the Land Use Bylaw. 4.3.11 Number of Parcels Within each quarter section of land zoned AU, RU, SR or UR, the subdivision of a maximum number of parcels that may be approved shall be four (4). No more than two of the four parcels, including parcels resulting from fragmentation, shall be for residential use. In evaluating subdivision applications the County shall have regard to the criteria noted in Section 5.3.4.
4.3.12 Agricultural Parcel The minimum agricultural parcel size shall be 30.35 ha (75 Size acres) with the following exceptions: a. Where parcels have been fragmented by natural or constructed barriers; b. Where a prior subdivision has resulted in a parcel of less than 30.35 ha (75 acres); c. Where the original quarter section is less than 64.7 ha (160 acres), in which case the minimum parcel shall not be less than 45% of the area of the quarter section; and d. In association with a related development approval or development application for an intensive agricultural development such as a green house or nursery. 4.3.13 Subdivisions of The subdivision of a fragmented parcel may be approved if: Fragmented Parcels a. The parcel is the entire area of the fragment; b. A suitable building site exists; and c. The proposed use of the parcel does not negatively impact adjacent agricultural uses.
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4.3.14 Linear When land in the Agriculture Policy Area or the Rural Infrastructure Development Policy Area is required for roads, rail lines, pipelines, transmission lines, other linear infrastructure, public uses, or for oil or gas wells, or incidental installations, the County will support those proposals that minimize the fragmentation of agricultural land. 4.3.15 Agricultural Land A variety of new, often voluntary, approaches to the Conservation conservation of agricultural land are emerging across the Additional Prairies. With the assistance of the Agricultural Services Approaches Board, the County will, by the end of 2018, evaluate whether participation in specific programming such as transfer of development rights and agricultural conservation easements are feasible and of potential benefit to the long term conservation of agricultural land and follow up with implementation as required.
4.3.16 Confined Feeding Confined feeding operations (also known as intensive Operations (CFO) livestock), the keeping of large numbers of cows, pigs or and Manure Storage horses in a confined space, is a specialized type of Facilities agriculture regulated by a provincial authority - the Natural Resources Conservation Board (NRCB). The NRCB defines a “confined feeding operation” as a fenced or enclosed land or buildings where livestock are confined for the purpose of growing, sustaining, finishing or breeding by means other than grazing and any other building or structure directly related to that purpose but does not include dwellings, livestock seasonal feeding and bedding sites, equestrian stables, auction markets, race tracks or exhibition grounds. In 2015 there are approximately 60 County/NRCB-approved confined feeding operations in Athabasca County though not all are currently operating; it is not possible to forecast future interest in this specialized type of agriculture. 4.3.17 Confined Feeding Athabasca County supports the development of new or Operations—County expanded confined feeding operations in both the Support Agriculture Policy Area and the Rural Development Policy Area and specifically in areas where there is limited potential for land use conflict. There are areas of the County where the establishment of new or expanded confined feeding operations or manure storage facilities requiring an approval, authorization or registration under the Agricultural Operations Practices Act as amended, is considered to be inappropriate. The County will not support an application if the proposed site is: a. Within 3.2 km of land used for residential, commercial, recreational or institutional use or land designated for such uses;
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b. Within 1.6 km of any natural heritage feature, water body, watercourse or ravine; c. Within 4.8 km of an urban municipality, an intermunicipal development plan boundary, a summer village or a hamlet; or d. Within the Lakeshore Management Policy Area (see Map 2) or within the Environmentally Significant area or the Key Wildlife and Biodiversity Zone (see Map 3). 4.3.18 Natural Resources The County shall submit recommendations to the NRCB on Conservation Board referred applications for new and expanded confined (NRCB) feeding operations and manure storage facilities. Prior to Recommendations preparing a recommendation, the County shall encourage the proponent to contact the local district agriculturalist and NRCB staff regarding siting, design and waste management. In preparing a recommendation to the NRCB on a proposal for new or expanded facilities requiring an approval or an authorization the County shall: a. Have regard to comments and recommendations provided by the Athabasca County Agricultural Services Board related to the feasibility of the proposed use and the suitability of the proposed site; b. Have regard to the separation distance criteria established in 4.3.17; c. Have regard to the potential for manure spreading to create odours that impact the use and enjoyment of residential property; d. Have regard to whether the proposed site is in proximity to (a) an institutional, commercial, recreational or residential use or land designated for such uses; (b) a water body, drainage course or natural area; (c) an area prone to flooding or groundwater contamination; or (d) another existing or proposed confined feeding operation; and e. Request that the NRCB require the applicant/ operator to enter into a Road Use Agreement with the County to address haul routes, maintenance/ upgrading, dust control and related matters.
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5.0 Residential Development
5.1 Background Characterized with an abundance of natural beauty, amenities and diverse employment opportunities, Athabasca County offers a number of options for permanent and non- permanent residential growth. The current permanent population lives in a range of housing types - farm dwellings, detached dwellings on rural parcels, dwellings in multi-lot County residential subdivisions, dwellings in hamlets, and homes and cottages in lakeshore subdivisions. The non-permanent population or seasonal population is housed in detached dwellings on rural parcels, country residential subdivisions, and dwellings in lakeshore subdivisions, as well as in work camps – Census Canada reported 919 dwellings occupied on a temporary or seasonal basis in 2011, an increase of 115 from 2001. The County estimates of seasonally-occupied residences (2015) are somewhat higher. Residential development demand is driven by the replacement of older farm dwellings with new dwelling units, by area residents seeking a rural residential setting, by Edmonton and Fort McMurray residents seeking a summer or weekend dwelling, by retirees seeking a rural residential lifestyle, and by workers seeking a dwelling for the duration of resource industry projects. Census Canada reported a total of 3885 dwelling units in 2011, up from 3494 in 2001. Future residential demand/activity is difficult to forecast; based on the census Canada data
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and County annual development permit records the plan estimates that there will be a demand for a minimum of 90 new dwelling units per year over the planning period; the presence of a major resource or manufacturing or institutional project will heighten the demand. Residential development requests for re-districting, subdivision and development approval are the most frequent type of planning applications processed by the municipality. Athabasca County wishes to continue to accommodate a wide range of residential demand while minimizing any potential impact on agriculture, by meeting provincial planning policies and regulations, and by being consistent with other County priorities. The County’s residential development planning policies address the current and anticipated types of residential development: rural residential development, country residential development, and work camps. Additional policies related to residential development in the Lakeshore Management Policy Area are found in Section 8.0. 5.2 Objectives The residential development policy objectives are to: • Accommodate the expected demand for residential development and housing. • Provide for a range of residential accommodation in locations close to amenities, services and employment centres, utilizing existing infrastructure and services. • Establish clear criteria for the location and design of rural, multi-lot country residential and seasonal residential subdivision and development. • Minimize the impact of residential development on agriculture and resource development. 5.3 Rural Residential Subdivision and Development
5.3.1 Rural Residential The County expects a continuing demand for the creation of Development rural residential lots subdivided from a quarter section to allow for the development of homes located in a rural setting. No more than 2 residential parcels/lots (including farmsteads) per quarter section shall be permitted in the Agriculture Policy Area and in the Rural Development Policy Area. (See 4.3.11)
5.3.2 Maximum Parcel The maximum size of a rural residential parcel in the Size - Agriculture Agriculture Policy Area and the Rural Development Policy Policy Area and Area shall be 1.2 hectares (3 acres) unless the County Rural Development Subdivision Authority is satisfied that a larger parcel: Policy Area a. Is necessary to accommodate existing improvements such as a farmstead, a shelterbelt, outbuildings ancillary to a farmstead, infrastructure or a driveway; or b. Would not take up land which is undevelopable for agricultural purposes due to topography or other geographical features such as treed areas and sloughs; or
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c. Will be on land that has a farmland assessment productivity of less than 40% in which case the maximum residential parcel size shall be 10 acres. (See also 5.3.4) 5.3.3 Farmstead The County may approve parcels larger than the maximum Separation Parcel size if it can be demonstrated to the County’s satisfaction Size that: a. The subdivision application relates to an existing farmstead; and b. The majority of the parcel is located on land that is not being farmed or the additional area would be undevelopable for agricultural purposes. The Subdivision Authority may require the preparation of a Real Property Report by an Alberta Land Surveyor to verify the location of all improvements, site factors and proposed boundaries. 5.3.4 Subdivision Criteria When evaluating a subdivision proposal for the first or second residential parcel in a quarter section the Subdivision Authority shall have regard to: a. Whether the land is within Agriculture Policy Area or Rural Development Policy Area; b. The farmland assessment productivity rating of the land in question: the land shall be considered to be better agricultural land if 65% of the area has a productivity rating of 40% or higher; c. If the proposed parcel does not contain a dwelling, whether a suitable building site exists; d. In the case of an undeveloped parcel, whether the proposed building site will unduly interfere with farming operations; e. Whether the proposed parcel has legal and physical access ( see also 12.3.7); f. Whether the design and location of the proposed parcel minimizes the loss of better agricultural land and does not restrict nearby agricultural uses; and g. Whether onsite sewage treatment and disposal can be provided in accordance with the Alberta Private Sewage Disposal Systems Regulation as amended. h. The Subdivision Authority may require the preparation of a Real Property Report by an Alberta Land Surveyor to verify the location of all improvements, site factors and proposed boundaries.
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5.3.5 Rural Residential In an effort to reduce the potential impact of rural residential Subdivision and development and the loss of agricultural land the County Housing Design supports rural residential subdivision in the pattern shown below. The County encourages housing styles and design that are rural in character.
Figure 2: Rural Residential Subdivision
5.4 Country Residential (Multi-lot) Subdivision and Development
5.4.1 Introduction A Country Residential (Multi-lot) subdivision is a subdivision which results in five (5) or more residential parcels/lots. Country residential subdivisions accommodate permanent dwellings for year-round and seasonal residents. Land developers normally subdivide all or part of a quarter section in one or more stages, develop the lots and provide services consistent with municipal standards. 5.4.2 Locating Country Athabasca County supports locating new country residential Residential development: Development a. In or near areas already zoned for country residential development; b. In appropriate locations in the Rural Development Policy Area and in the Lakeshore Management Policy Area - Major Lakes (See Section 8.0); c. Near paved or oiled roads; and d. In close proximity to the ARWSC. 5.4.3 Evaluation Criteria When reviewing proposed locations for multi-lot, country residential subdivisions, the County shall ensure that the proposed development is located such that: a. The viability of nearby agricultural operations, confined feeding operations, logging and forestry
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operations is not impacted; b. The site is not prone to flooding, subsidence, c. erosion, or other environmental hazard; d. Where the proposed subdivision will not be serviced by the ARWSC, potable water will be available without impacting long term groundwater availability; and e. Where the proposed subdivision will not be serviced by municipal sewer infrastructure, soil conditions allow for onsite sewage treatment and disposal in conformance with the Alberta Private Sewage Disposal Systems Regulation as amended.
5.4.4 Undeveloped Lots To maximize the efficient use of all lots, roads and servicing infrastructure within existing subdivisions the County shall take the existing undeveloped lot availability into consideration when evaluating proposals for multi-lot country residential subdivisions.
5.4.5 Area Structure The development of a new country residential subdivision of five Plans (5) or more lots shall require the adoption of an Area Structure Plan to guide the land use, design and servicing of the area prior to subdivision and development approval. Area Structure Plans may be prepared by owners/ developers or by the County. Area Structure Plans for country residential development shall address the following criteria to the County’s satisfaction: a. The soil capability of the land in question; b. The land uses and development concept including population density proposed for the area; c. The proposed sequence of development; d. The impact of the development on adjacent lands; e. How the proposed development will retain trees, watercourses, wetlands, wildlife corridors, or other natural features, and/or historical buildings or sites; f. The remedial measures intended to address natural and man-made hazards on or near the site including, but not limited to, contaminated soils, land fill sites, sewage lagoons, flood plains, high water tables, sour gas sites, rail right-of-ways, slopes over 15% gradient and unstable slopes; g. Internal roadway system layout, provisions for year round access, any roadway upgrading which may be required as a result of the development, and if applicable a traffic impact assessment; h. Provision of power and natural gas; i. Provision of water supply including long term supply;
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j. Provision for onsite sewage treatment and disposal system; k. Provision for storm water management; l. Provisions for and impact upon community services such as schools, recreation facilities, fire, emergency, and police protection; m. Provisions for municipal, school and/or environmental reserves including buffers and/or screening from railways, major roadways, industrial, commercial and other incompatible uses; and n. Any other matter County Council considers necessary.
5.4.6 Protection of Rural To protect the County’s rural character and to preserve Character environmentally sensitive areas and natural features Athabasca County supports conservation (cluster) design which allows for the clustering of smaller sized lots while providing opportunities for landscape and view protection with common open space. Areas particularly suited to cluster design include woodlands, stream corridors, shore lands, slopes, wetlands, ridge tops, wildlife corridors and critical species habitat. The drawing below illustrates the cluster layout; a specific land use district will be provided to accommodate cluster design. 5.4.7 Development Costs
Figure 3: Cluster Subdivision Design The developer of a country residential (multi-lot) subdivision shall assume responsibility for all onsite and required offsite costs related to the proposed development. At time of subdivision the County shall require the developer to enter into a development agreement with the County. (See also 12.3.10)
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5.5 Work Camps
5.5.1 Introduction Economic growth in Athabasca County and in Northeast Alberta has led to a demand for work camps to house both construction and operations workers employed in industries related to oil and gas exploration and development, logging and highway construction. Works camps provide important temporary, short-term and rotational accommodation in more remote locations where workers cannot be lodged in hamlets or urban centres. In recent years work camps have been developed at much higher standards than in earlier years and may now include recreational facilities, libraries, classrooms, executive suites and red-seal kitchens. Work camps are generally classified as ‘closed camps’ which cater to workers from specific employers or ‘open camps’ which are open to any resident and function similar to hotels/ motels. Work camps are located on private land as well as on Crown Land and, for the most part, have located mainly in the Wandering River area where there is substantial oil and gas and highway construction activity. 5.5.2 County Policy Work camps serve to reduce regional road traffic, commuting times, fuel consumption and vehicle emissions by enabling workers to be housed close to remote work sites. The County supports the development of well- designed work camps at appropriate locations in support of resource development and highway construction. In addition, the County supports resource development and highway construction projects making use of available accommodation in urban centres and hamlets when projects are within reasonable commuting distances. Work camps whether designed for short-term or long-term use should be located: a. In areas of marginal agricultural land within the Rural Development Policy Area; b. In areas where appropriate access is available; and c. In areas where nearby residential development is not impacted. 5.5.3 Development The County will work with industry to locate works camps in Criteria close proximity to work sites and in proximity to each other to reduce land use conflicts and to minimize the impact of work camp traffic on local roads. The County will develop approval conditions to be implemented through the LUB that address the closure of work camps, the return of a site to its natural state, and the remediation steps and security required. 43 of 110
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6.0 Hamlet Development
6.1 Background Hamlets are unincorporated communities consisting of residential and non-residential land uses and often contain educational and community facilities as well. There are 11 hamlets in Athabasca County; the County designates the hamlets and establishes the hamlet boundaries. While the population and economic importance of hamlets has been declining in Athabasca County and across the country, these small settlements continue to serve important social and community functions. Athabasca County’s hamlets have varying levels of municipal infrastructure. Colinton, Grassland, and Wandering River are serviced with municipal water and sewer, with water being provided by the Aspen Regional Water Services Commission regional water line. Rochester has municipal sewage collection and treatment facilities. The remaining hamlets (Atmore, Breynat, Caslan, Donatville, Ellscott, Meanook, and Perryvale) have no municipal water and sewer services. The construction of the APWSC has increased the development potential in Colinton, Grassland and Wandering River (see Map 2 for location of ARWSC). There is a possibility of extending the ARWSC to Rochester. In these 4 communities there are some infill possibilities and potential for growth on the fringe; growth on the fringe of each community requires new
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infrastructure to service the new development areas and improvements to the sewage treatment and collection facilities. Two hamlets, Grassland and Wandering River, have grown in economic importance over the last 20 years functioning as commercial/industrial service centres along Highway 63 within the Alberta Energy Corridor.
Table 7: Development Capacity Estimates for Serviced Hamlets
Hamlet Current Estimated Growth Capacity: Estimated Growth Population Water (treatment, storage) Capacity: Sewer (treatment, collection) Colinton 274 1000 300 Rochester 101 N/A 325
Wandering 120 250-350 190 River Grassland 117 270 400 Source: Athabasca County
The hamlets that do not have municipal services each have only a small number of dwellings and limited or no commercial development. The intent of the policies in this section is to support and strengthen the viability of Athabasca County’s hamlets. 6.2 Objectives The Hamlet Development objectives are to: • Maintain hamlets as community centers serving surrounding agricultural communities. • Support economic development, the provision of new and varied housing, and population growth in all hamlets with a focus on Wandering River, Grassland, Colinton and Rochester. • Maximize the use of existing infrastructure; ensure that appropriate areas are made available to accommodate residential and commercial/industrial development. 6.3 County Planning Policies
6.3.1 Growth Hamlets Athabasca County designates Colinton, Grassland, Rochester and Wandering River as “Growth Hamlets.” To take advantage of local infrastructure and services Athabasca County supports residential, commercial, industrial, and institutional development taking place in and near the Growth Hamlets.
6.3.2 Area Structure Plans New development in Wandering River and Grassland will be guided by the adopted area structure plan for each community (Wandering River ASP – 2012 as amended; Grassland ASP - 2012 as amended). In light of changing economic circumstances and development potential, the review and update of the Wandering River and Grassland Area Structure Plans will be initiated by December 2018.
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The preparation of Area Structure Plans for Colinton and Rochester will be initiated by December 2019 or sooner if increased growth and development is anticipated. 6.3.3 Housing Form The County will encourage and support the provision of a variety of housing types within the Growth Hamlets in order to accommodate the growing number of seniors wishing to reside in the County, individuals moving to the County to take advantage of economic opportunities, and young families and individuals wishing to remain in the County.
6.3.4 Regional Water to The provision of water from the ARWSC to a hamlet Additional Hamlets increases the community’s long term growth potential. The County will initiate a study of the feasibility of extending the ARWSC to the Hamlet of Rochester by the end of 2017.
6.3.5 Efficient Use of Efficient and economical use of the water and sewer Infrastructure in servicing systems shall be incorporated into the design of Subdivision Design hamlet development areas.
6.3.6 Land Developers Land owners/developers shall be required to provide Role services to new development areas. Development proposals shall be required to contain water, sewer, transportation and stormwater servicing details and an evaluation of potential impacts on infrastructure system capacities. (see also 12.3.10) 6.3.7 Hamlet Boundary Expansion of the boundaries of the Growth Hamlets, if Expansion required, shall be directed to marginal agricultural land. 6.3.8 Stable Hamlets Atmore, Breynat, Caslan, Donatville, Ellscott, Meanook, and Perryvale, the hamlets where water and sewer services are provided by each owner on an individual lot basis rather than by the municipality, are designated as “Stable Hamlets.” 6.3.9 Growth Limitations Athabasca County recognizes that the Stable Hamlets have growth limitations. In many situations, lot sizes are too small to allow for onsite sewage disposal. Limited development is anticipated. Subdivision and development, while encouraged, shall not negatively impact ground water supply or sewage disposal capacities. Athabasca County will update ground water capacity studies for each Stable Hamlet by 2020. 6.3.10 Regional Water Line The Stable Hamlets may benefit from being connected to the ARWSC. The County will initiate a study of the feasibility of providing water from the ARWSC to each of the Stable Hamlets by 2021.
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6.3.11 Hamlet Facilities The County will continue to support community, recreational, and senior citizen facilities and programs in all hamlets in an effort to stabilize population levels and to provide opportunities for seniors to age in place.
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7.0 Commercial and Industrial Development
7.1 Background Commercial and industrial development is important to municipal fiscal sustainability and the County’s ability to provide a high level of service to residents. Commercial and industrial development has focused on the Hamlets of Grassland and Wandering River, and on areas adjacent to highways and secondary roads. Since the 1990’s two important development nodes have emerged in association with the growth of the Northeast Alberta’s natural resource base: the Spruce Valley Industrial Node generated by Al-Pac forestry activities and the Highway 63 Corridor generated by development and transport activities in the Athabasca Oil Sands Region north of Wandering River. Industrial development includes forestry, logging, natural resource extraction and oil and natural gas activities. In addition, Athabasca County is impacted by oil sands activities in the Regional Municipality of Wood Buffalo and the volume of commercial and industrial traffic on Highway 63. Typical commercial and industrial uses in Athabasca County include a range of operations from retail, trucking, welding shops to major pulp and paper plants. The County will continue to work with industry and other levels of government in support of strategic economic growth and development.
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7.2 Objectives The Commercial and Industrial Development Policy objectives are: • To support the expansion and diversification of the County’s economic base through a wide range of commercial and industrial development in suitable locations across the County. • To minimize land use conflicts between commercial/industrial development and adjacent agricultural operations and residential land use. • To maintain high environmental and servicing standards. • To limit municipal costs associated with commercial and industrial development. 7.3 County Policies
7.3.1 Establishment of Athabasca County establishes the following seven (7) Commercial and Commercial and Industrial Development Growth Nodes as Industrial Nodes illustrated on Map 2: • Boyle Fringe Area • Highway 63/55 Junction • Grassland Area • Wandering River Area • Spruce Valley Industrial Area • Highway 55/Al-Pac Connector Area • Athabasca IDP Area These Growth Nodes represent existing concentrations of commercial, light industrial and heavy industrial development and/or are areas that have been identified as having growth potential as employment centres. The boundaries of the Growth Nodes are conceptual and are not intended to be used to establish exact land use districts.
7.3.2 New Commercial The County supports new commercial and industrial and Industrial development in appropriate and strategic locations Development throughout the County. In particular, the County supports the establishment of light industrial development associated with the agricultural, oil and gas, and forestry resource base. New commercial and light industrial development should be located: a. In the 7 designated Commercial and Industrial Development Growth Nodes; b. At strategic locations in the Rural Development Policy Area; and c. In the Growth Hamlets. The County supports limiting new heavy industrial development to the Spruce Valley Area.
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7.3.3 Boyle Fringe Growth The Boyle area is a strategic location on Highway 63. Node Commercial and industrial development on the northern boundary of the Village has been proposed for some time. A number of parcels have been districted for heavy industry or highway business and one industrial subdivision has been developed. Industrial development would be advanced if water and sewer could be extended from the Village. An outline plan has been prepared to guide development in the area. The twinning of Highway 63 will limit the number of access locations. 7.3.4 Hwy 63/55 Junction The Highway 63 and 55 junction near Donatville provides Growth Node excellent access to Boyle, Athabasca and Fort McMurray with high visibility for highway commercial traffic. As part of the twinning of Highway 63 an interchange at Highway 55 will be constructed. Three-phase power is available at this location and the proximity of the Al-Pac rail spur and the Al- Pac Connector Road may be a locational advantage. 7.3.5 Grassland Growth The Hamlet of Grassland is strategically located along the Node Highway 63 Corridor and benefits from its proximity to the Al-Pac operation. Serviced land is available in the hamlet and viable development locations have been identified in the surrounding area. The relocation and twinning of Highway 63 will limit the number of access locations. 7.3.6 Wandering River Wandering River is an important service centre on Highway Growth Node 63 approximately 200 km south of Fort McMurray with potential for commercial and industrial growth. Capacity is limited in the local water and sewer system. Expansion beyond the current hamlet boundaries may be possible if supported by planning and technical studies. The twinning of Highway 63 has limited the number of access locations. 7.3.7 Spruce Valley The Spruce Valley Growth Node is centered on the Al-Pac Growth Node forestry operation north of Highway 55. Al-Pac is the largest employer in the County with over 700 direct employees and has the potential to generate spin off businesses including large scale industrial users. Several sections of land in the area are owned by Al-Pac and are districted for heavy industrial use. Adjacent areas have been proposed for future industrial development. Development in the area may benefit from the Al-Pac connector road and the Al-Pac rail spur. 7.3.8 Highway 55 / Al-Pac This growth node is centered on the junction of two major Connector Growth transportation routes and the Arnett and Burgess Industrial Node Area Structure Plan as amended. This area is seen as suitable for businesses supporting the oil and gas industry. Expansion beyond the current ASP boundaries should not impact surrounding agricultural operations.
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7.3.9 Athabasca Growth Athabasca is an established service centre with a labour Node force that meets regional needs. The Intermunicipal Development Plan (IDP) (2012), as amended, designates areas within the Athabasca Fringe Area for commercial and industrial development. Certain areas of the IDP are more suitable for un-serviced industrial uses while other areas can potentially be provided with municipal water and sewer services. The Athabasca Airport located immediately east of the IDP area may provide opportunities for low level commercial and industrial use in conjunction with airport operations. 7.3.10 Evaluation criteria New commercial and industrial development proposals will be considered based on the individual merits of each proposal. The County will utilize the following criteria to evaluate commercial and industrial development proposals as these are brought forward: a. The proposed development should be located in a designated Commercial and Industrial Growth Node or in or adjacent to a Growth Hamlet; if the location is not in one of these two areas, it should be in the Rural Development Policy Area; b. The proposed development should be near a major transportation route, be able to be accommodated by the County road system, and be compatible with planned and approved access points; c. The proposed development should be compatible (noise, traffic, odour, light) with adjacent agricultural operations and other land uses and adequate buffers separating the development from adjacent uses should be provided; d. The proposed development should not adversely impact cultural or historical features; e. The proposed site should have attributes favourable to the establishment and operation of the proposed business or industry; f. The site should be serviced/serviceable by a communal water and sewer system that extends from an existing system licensed by the Province and complies with County standards or the proponent should demonstrate to the County that the site is suitable for onsite sewage disposal and an adequate water supply is available consistent with Provincial requirements or from the ARWSC; g. Any potential safety or environmental issues should have been adequately addressed. Wetlands shall not be negatively impacted; 52 of 110
h. Light industrial and manufacturing uses should be located in a designated Growth Node or in a Growth Hamlet; and i. If the proposal is for a heavy industrial facility, the facility shall be located at least 1.6 km (1 mile) from nearby dwellings, schools and hospitals and shall be located at least 450 m from the parcel boundaries.
7.3.11 Technical Studies Large scale industrial development has the potential to Required impact the County’s air quality, ground water quality and lake and stream health. The County may request the proponent of a major industrial development to provide technical studies in support of an application including: a. An environmental impact assessment prepared in accordance with AEP guidelines; b. A development and reclamation plan in the case of a resource extraction proposal (including peat moss extraction); c. A traffic impact assessment; d. A risk assessment in the case of a potentially noxious industry that may result in environmental contamination; and e. Any other information or study determined necessary by the subdivision and development authority for consideration of the application. 7.3.12 Multi-Parcel Industrial parks (also known as business parks) are large Industrial Parks tracts of land subdivided, designed, developed and serviced to accommodate a range of industries and/or light industrial operations. Athabasca County supports the clustering of commercial and industrial uses in industrial parks with a view to reducing the potential for scattered industrial development and the loss of agricultural land. There are several industrial parks located in Athabasca County. Intensification of development in existing industrial parks shall be encouraged through amendments to existing plans as a means of promoting the efficient use of land and infrastructure. The County has identified the need for an industrial park in the vicinity of the Town of Athabasca and will designate a suitable area by 2020. The designation may take place in conjunction with the review of the Intermunicipal Development Plan. (See 14.3.3)
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7.3.13 Area Structure Plans The development of an industrial or business park shall Required require the preparation and approval of an area structure plan. An area structure plan for an industrial or business park should address the following: a. The soil capability of the land in question; b. The land uses and development concept proposed for the area including innovative land use patterns such as an eco-industrial approach; c. Parcel size - the minimum parcel size shall be one acre; d. The proposed sequence of development; e. The impact of the development on adjacent lands; f. How the proposed development will retain trees, watercourses, wetlands, wildlife corridors, or other natural features, and/or historical buildings or sites; g. The remedial measures intended to address natural and man-made hazards on or near the site including, but not limited to, contaminated soils, land fill sites, sewage lagoons, flood plains, high water tables, sour gas sites, rail right-of-ways, slopes over 15% gradient and unstable slopes; h. Internal roadway system layout, provisions for year round access, any roadway upgrading which may be required as a result of the development, and if applicable a Traffic Impact Assessment; i. Provision of power and natural gas; j. Provisions for water supply, sewage treatment and disposal, and storm water management - sustainable development strategies related to efficient utility servicing and for the preservation and integration of environmental features are encouraged; k. Provisions for and impact upon community services such as fire, emergency, and police protection; l. Provisions for municipal, school and/or environmental reserves including buffers and/or screening from railways, major roadways, industrial, commercial and other incompatible uses; m. Opportunities for infill or future growth; n. Shall be accompanied by an engineering design report and an environmental review if requested by the County; and o. Any other matter County Council considers necessary.
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Industrial Use 7.3.14 Industrial uses outside of industrial parks such as storage, light Outside Industrial industrial uses, and heavy equipment and construction related Parks uses may be appropriate in specific situations. In addition to the criteria in 7.3.10 the County will utilize the following criteria to evaluate industrial use proposals outside of industrial parks: a. The site should be in the Rural Development Policy Area and/or the development of the site should not contribute to the loss of better agricultural land; b. The proposed development should be non-labour intensive and require a larger area of land with a minimal requirement for onsite services; c. The site is located along or near a major transportation route; and d. Minimal onsite municipal services, improvements and public amenities are required. 7.3.15 Industrial and The Athabasca County Land Use Bylaw shall contain Commercial development regulations for industrial and commercial uses Development that address such matters as landscaping and screening, Regulations parking and signage requirements, and buffering standards.
7.3.16 Home-Based The County recognizes that home-based businesses Businesses represent a viable economic and life-style option appropriate throughout the municipality and often serve as business incubators. Home-based businesses include smaller scale businesses and trades, bed and breakfast establishments, and guest ranches. The County supports the establishment of home-based businesses under the following circumstances: a. The home-based business is of a scale consistent with the character of the surrounding area; b. The home-based business has a negligible impact on the local environment, water supply, infrastructure and municipal services; and c. The home-based business is secondary in nature to the residential use of the property.
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7.4 Resource Extraction Industries Resource extraction is a form of industrial land use. Athabasca County has a number of resource extraction industries including forestry, logging, sand and gravel, and peat moss harvesting which contribute to the local economy. The siting of resource extraction is constrained by the location of the particular resource. In principle, Athabasca County supports the development of resource extraction activities within the Rural Development Policy Area if measures to reduce any potential conflict with surrounding land uses can be implemented.
7.4.1 Natural Resource The County encourages the continued accommodation of Extraction and resource related developments such as natural resource Processing activities and petroleum exploration and servicing where measures are able to minimize conflict with surrounding land uses. Such activities should be respectful of the rural community, natural environment, and industry needs. The County will exercise its regulatory authority with respect to only those issues that are within municipal jurisdiction as described under the MGA and applicable provincial and federal legislation.
7.4.2 Sour Gas The County recognizes that sour gas facilities exist throughout the municipality. Future development shall be appropriately distanced from sour gas facilities to minimize potential exposure to sour gas. Applicants for subdivision and/or development shall be required to locate sour gas facilities within close proximity to the proposed development and conform to the setback standards established by the Alberta Energy Regulator (AER). 7.4.3 Sand and Gravel Sand and gravel resources are important to the County’s economic development and highway and local road construction. To ensure the long term viability of the local gravel resource, new residential and commercial development will be directed away from active and potential sand and gravel extraction areas. Land which is underlain by a commercial deposit of gravel should not be used for purposes other than agriculture to allow for subsequent extraction. County approval of sand, gravel, clay or marl extraction on a site exceeding 2 ha (5 acres) shall require the preparation, approval and implementation of a reclamation plan unless such a plan is a component of a provincial approval.
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7.4.4 Development and A development and reclamation plan required by the Reclamation Plan County should address: a. The sequence and extent of the proposed development; b. The use of land after the extraction has been concluded; c. Any anticipated impact on surface water, groundwater and fish and wildlife habitat and the proposed mitigation measures; and d. Any anticipated impact on historical resources. 7.4.5 Development Costs A proposal for new or expanded commercial or industrial development should identify the required improvements to municipal services and facilities made necessary by the proposed development, and the estimated costs of providing the required improvements. The apportionment of cost shall be addressed in a development agreement between the County and the developer as a condition of subdivision or development approval. The County will work with industrial proponents and associations to address the impact of industrial development on County roads and seek mutually supported methods to address those impacts.
7.4.6 Alberta Approval Commercial and industrial development may require Required provincial as well as municipal approval. Developers are required to secure required provincial approvals prior to commencing any site preparation or development. The County encourages proponents to seek required provincial approvals prior to or in conjunction with municipal approval. The County will take an active role in the provincial approval process for natural resource extraction and processing proposals, assessing the impact such development may have on existing and future land use, and keeping County residents current with respect to the application’s progress. The County will encourage industry to assess the impact of development plans on the surrounding area and to share plans and studies with the public as soon as possible in the approval process.
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8.0 Lakeshore Management Policy Area
8.1 Background Athabasca County’s numerous lakes and lakeshores have long been in demand for residential and recreational use. Residential development near lakes consists of permanent and seasonal dwellings while recreational development includes institutional and group accommodation and facilities, campgrounds, recreational vehicle accommodation and golf courses. Recreational development, catering to County residents and visitors, contributes to the County’s tourism industry and may or may not include buildings and other facilities. In turn, this activity prompts local commercial development that serves resident and visitor populations. The lakes and lakeshores play a vital role in the preservation of fish and wildlife habitat, the maintenance of stream flow and groundwater recharge.
For the purposes of this plan the County’s lakes are divided into two groups:
1. Major Lakes. This category is comprised of the 5 lakes which both have the most intensively developed shore land and will likely experience continued residential and recreational development pressure: Baptiste Lake and Island Lake in the western part of the County and Skeleton Lake, North Buck Lake and Amisk Lake in the eastern part of the County.
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2. Less Developed Lakes. This category is comprised of 12 typical northern lakes scattered throughout the County. These lakes are smaller than the Major Lakes, have minimal lakeshore development, and are partially or entirely surrounded by Crown land. These lakes are popular as recreational lakes and are used for boating, camping, fishing and institutional and group use. In some situations, shore areas are leased to recreational interests. This group of lakes is likely to experience limited development pressure.
Over the last 50 years, the number of dwellings built adjacent to the County’s Major Lakes has grown consistently. Cottage areas have been incorporated as Summer Villages on the shores of Island Lake (2), Baptiste Lake (4) and Skeleton Lake (2) during that period. A summer village is an incorporated municipality historically designed for seasonal occupation. In recent decades however, many summer villages have gained a permanent as well as a non-permanent population. The Summer Village of Island Lake in Athabasca County has the largest permanent population (243) of all 51 summer villages in Alberta. One summer village on Baptiste Lake, Whispering Hills, was dissolved and the residential development area is now part of the County. The MGA no longer allows the creation of summer villages.
Apart from the subdivided areas in the summer villages a number of lakeshore areas within the County on the Major Lakes have been subdivided and developed as multi-lot country residential communities. There are an estimated 1040 residential lots (within the County and the summer villages) in the Skeleton Lake Policy Area, an estimated 800 residential lots in the Baptiste Lake Policy Area, an estimated 504 lots in the Island Lake Policy Area, an estimated 230 lots in the North Buck/Johnson Lake Policy area, and an estimated 160 lots in the Amisk Lake Policy Area. In addition, intensive development within the Lake Management Policy Areas—Major Lakes includes private and County- operated campgrounds, day use areas, summer camps, municipal parks, and recreational vehicle parks.
Lakes in Northern Alberta, including those in Athabasca County, are particularly susceptible to the presence of algae blooms. Water quality studies have been carried out from time to time by the Province (Alberta Environment) and by non-profit and volunteer organizations on the County’s lakes to determine the health of the lakes at a given time and to recommend remedial steps.
Lakes and lakeshores are a valued component of Athabasca County’s landscape. During the MDP public participation sessions, area residents and representatives of lake residents’ associations, interest groups and summer villages expressed concern over the magnitude and nature of development in the vicinity of the larger lakes and the importance of maintaining the natural surroundings of the smaller lakes. In both situations the County was encouraged to continue to focus on the preservation of lakeshore environments and the maintenance of water quality and lake health.
The County recognizes that the responsibility for lake management and lake health is a shared responsibility between the Province, the County, summer villages, land owners, visitors, community based organizations, and interest groups. The intent of this section is to establish policies which contribute to the long term sustainability and continued public use of the County’s lakes.
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8.2 Objectives The Lakeshore Management Policy Area objectives are: • To contribute to the health and sustainability of the County’s lakes and shore lands for the benefit of both residents and visitors. • To maintain a high quality of life for the residents who live in the vicinity of the County’s lakeshores; to maximize lake access for residents and visitors. • To provide opportunities for residential and recreational development at appropriate locations in the vicinity of lakes while respecting existing development levels, the capacity of lakeshore areas, and the potential to impact water quality and long term lake sustainability. • To preserve better agricultural land in the vicinity of lakes. • To provide diverse recreational opportunities in the vicinity of lakes without impacting the natural environment. • To establish policies related to both the overall lake environment and specific land areas requiring special attention. 8.3 County Policies
8.3.1 Lakeshore The County views the lakes and lakeshores as a public resource. Management The County designates the Lakeshore Management Policy Area Policy Area as shown on Map 2. This policy area is generally within 1 to 1.5 miles of the 5 Major Lakes (Island, Baptiste, Skeleton, North Buck and Amisk) and within 0.5 to 1 mile of 16 Less Developed Lakes (Round, Lyle, Powder, Lodge, Big Johnson, Hope, Cricket, Jackfish, Crooked, Ghost, Narrow/ Long, Charron, Sandhill, Armstrong, Jenkins and Tawatinaw). 8.3.2 Development Near The County recognizes that the conversion of lands in the Lakes vicinity of lakes from their natural state or from agriculture to recreational and residential uses may be both economically beneficial to the County and provide increased opportunities for County residents and visitors. The County also recognizes that, without appropriate land use management, such land use intensification has the potential to negatively impact lake health and water quality, fish and wildlife habitat, the maintenance of optimum flows and water levels, the recreational environment and surrounding land uses and users. The County will manage land use in the Lakeshore Management Policy Areas with the intention of allowing limited increased development while maintaining large areas of undeveloped shore lands, reducing the potential for environmental impacts, increasing public access to lakes and lakeshores, and encouraging the sustainable use of shared aquatic resources. The predominant land use in the Lakeshore Management Policy Areas shall be a combination of public recreation and residential development for the Major Lakes and public recreation for the Less Developed Lakes. 61 of 110
8.3.3 Applicable Land Use Development approval in the Lakeshore Management Policy District Area will adhere to the provisions of the relevant area structure plan, if one has been prepared, and the applicable provisions of the County Land Use Bylaw. The Special Recreation District in the Land Use Bylaw will apply to the shore areas of the designated Less Developed Lakes.
8.3.4 Area Structure Plans The development of a residential subdivision of 5 or more Required lots in the Lakeshore Management Policy Area shall require the approval of an area structure plan to guide the land use, design and servicing of the area prior to subdivision and development approval. The area structure plan shall be prepared by the owner/developer and address the following criteria to the County’s satisfaction: a. The soil capability of the land in question; b. The land uses and development concept proposed for the area; c. The proposed sequence of development; d. The impact of the development on adjacent lands; e. How the proposed development will retain trees, watercourses, wetlands, wildlife corridors, or other natural features, and/or historical buildings or sites; f. The remedial measures intended to address natural and man-made hazards on or near the site including, but not limited to, contaminated soils, land fill sites, sewage lagoons, flood plains, high water tables, sour gas sites, rail right-of-ways, slopes over 15% gradient and unstable slopes; g. The internal roadway system layout, provisions for year round access, any roadway upgrading which may be required as a result of the development and, if applicable, a Traffic Impact Assessment; h. Provisions for lake access by residents and visitors; i. The provision of power and natural gas; j. Provisions for water supply including an analysis of long term availability; k. The provision of onsite sewage treatment and disposal consistent with Alberta Private Sewage Disposal Systems Regulation, as amended, including an analysis of any potential impact on lake water quality; l. Storm water management provisions including an analysis of any potential impact on lake water quality;
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m. An analysis of the potential impact of the development on community services such as schools, recreation facilities, fire, emergency, and police protection; provisions to address the impact; and n. Provisions for municipal, school and/or environmental reserves; reserve shall be dedicated to adequately protect environmentally sensitive land including riparian areas, and to provide interconnected green spaces for trails including connections to nearby public recreation facilities. o. Any other matter the County Council considers. 8.3.5 Technical Studies With a potential impact on both land and water, planning Required decisions in the Lakeshore Management Policy Area are critical to both the County’s goals and provincial interests. The County may require impact studies such as a geotechnical assessment, an environmental impact assessment, a groundwater assessment and a biophysical assessment in support of an area structure plan, a redistricting, or subdivision and development applications in the Lakeshore Management Policy Area. Applications may be approved only when the supporting information required by the County has been reviewed and accepted by the County. Acceptance of the supporting information does not guarantee application approval. 8.3.6 Evaluation Criteria Proposals to intensify land use and/or amend the Land Use (See also 8.3.4) Bylaw in the Lakeshore Management Policy Area shall be assessed on a site specific basis. When the County reviews draft area structure plans, redistricting applications, and subdivision and development applications it shall have regard to the following: a. Current and forecasted lake water quality indicators (assistance may be sought from Alberta Environment and Parks); b. The CLI rating and the farmland assessment productivity rating of the land in question, including the proportion and relative location of better agricultural land; c. Whether the parcel is severed by a physical feature and as a result cannot be easily farmed; d. Whether the clearing of vegetation is required; e. Whether adequate public access to lakeshores is to be provided as part of the proposed development. Public access may include such things as public boat launches, public walkways or public parks/day use areas; 63 of 110
f. Has environmental reserve land or environmental reserve easements been provided consistent with MGA provisions and County requirements? The County shall require a minimum 35 m setback from the high water mark to proposed lot boundaries and may require additional subdivision setbacks within the Lakeshore Management Policy Area depending on the outcome of the technical studies and local analysis; g. Whether onsite water supply, sewage treatment, and storm water management can be facilitated consistent with Provincial and County standards; whether the proposed development can be connected to the ARWSC; h. The availability of undeveloped lots in the vicinity of the land in question; and i. Whether the proposal conforms to the relevant site- specific policies stated in 8.3.8 to 8.3.11; these polices have been carried over from County lake planning efforts over a 20 year period and are the outcomes of previous subdivision decisions and/or long standing land development policies.
8.3.7 Undeveloped Lands Several areas within the Lakeshore Management Policy Area Zoned Country - Major Lakes are zoned Country Residential and, as of 2016, Residential have not been subdivided or have been partially subdivided. Further subdivision in these areas shall be required to comply with the applicable provisions of Sections 8.3.4 to 8.3.6, to comply with the area structure plan requirements (See 8.3.4), and to meet the relevant provisions of the Land Use Bylaw. 8.3.8 Subdivision and Planning, subdivision and development decisions in the Development Near Lakeshore Management Policy Area surrounding Baptiste Baptiste Lake Lake shall conform to the following site-specific policy addressing previously identified development constraints despite any other MDP provisions to the contrary: a. The subdivision of no more than 7 parcels may be approved on Lake Lot 16- 66-24-W4.
8.3.9 Subdivision and Planning, subdivision and development decisions in the Development Near Lakeshore Management Policy Area surrounding Island Lake Island Lake shall conform to the following site-specific policies addressing previously identified development constraints despite any other MDP provisions to the contrary: a. No more than 16 residential lots may be approved on SW 31-67-23-W4; 64 of 110
b. The subdivision and development of land within 300 m (984 ft) of the high water mark in SW 31-67-23-W4 will not be approved; only foot access to the lake shall be permitted on this quarter section. c. The subdivision of no more than 16 residential lots may be approved on SW 6-68-23-W4. d. The subdivision of no more than 16 country residential lots in may be approved on the SW 31-67- 23-W4. e. The subdivision of no more than 16 country residential lots in may be approved on the SW 6-68- 23-W4. f. The subdivision of no more than 16 residential lots may be approved on NW 12-68-24-W4. g. The subdivision of no more than 7 country residential lots may be approved on the portion of NNE 26-67- 24-W4 south and east of Spruce Drive.
8.3.10 Development Near Planning, subdivision and development decisions in the Skeleton Lake Lakeshore Management Policy Area surrounding Skeleton Lake shall conform to the following site-specific policies addressing previously identified development constraints despite any other MDP provisions to the contrary: a. The subdivision and development of land located within 400 m (.25 mile) of the high water mark and fronting on Skeleton Lake shall not be permitted; b. Further subdivision of existing residential subdivisions located within 400 m (.25 mile) of the high water mark and fronting on Skeleton Lake shall not be permitted; c. Despite 8.3.10(a) and 8.3.10(b): • The subdivision of a maximum of 10 residential lots may be approved within 400m of the high water mark in SW 14-65-19-W4; • The subdivision of a maximum of 10 residential lots may be approved within 400m of the high water mark in NE 14-65-19-W4; • The subdivision of a maximum of 10 residential lots may be approved within 400m of the high water mark within that portion of NE 11-65-19- W4 north of the railroad right-of-way; • The subdivision of a maximum of 10 residential lots may be approved within 400m of the high water mark within NE 13-65-19-W4;
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d. No subdivision or development on NE 6-65-18-W4 may be approved until a comprehensive assessment of the capacity of the lake has been completed and that assessment determines, in the County’s view, that the lake can accommodate additional lakeshore recreational or residential use; e. No subdivision or development on NE 7-65-18-W4 shall be approved until a comprehensive assessment of the capacity of the lake has been completed and that assessment determines, in the County’s view, that the lake can accommodate additional lakeshore recreational or residential use; f. The subdivision of no more than 5 country residential lots may be approved within that portion of NE 5-65- 18-W4 northwest of Highway 663; g. The subdivision of no more than 21 country residential lots may be approved from plan 032 4526 within NE 5- 65-18-W4 northwest of Highway 663; h. The re-subdivision of Lots 1 and 2, Block 3, Plan 2843TR (SE 30-65-18-W4) into a total of 3 country residential lots may be approved. 8.3.11 Subdivision and Planning, subdivision and development decisions in the Development Near Lakeshore Management Policy Area surrounding North Buck North Buck Lake Lake shall conform to the following site-specific policies and Little Johnson addressing previously identified development constraints Lake despite any other MDP provisions to the contrary: a. No new residential subdivision or recreational development shall be approved in the North Basin, South Basin, North Narrows or South Narrows areas of North Buck Lake; b. The total density of residential and recreational development surrounding Johnson (Chump) Lake and the main basin of North Buck Lake shall not exceed one dwelling or recreation unit (a space in a campground or RV park) per 4 ha (10 acres) of surface water; c. The campground on S½ of 30-65-17-W4 is the focal point of recreation activity in the Johnson Lake area; expansion of this campground may be approved to a maximum of 55 recreational units; d. The subdivision of no more than a total of 75 country residential lots in addition to the lots in existence on June 14, 1988 shall be approved within the west half of Section 8, SW 17 and SE 18, all within 66-17-W4, and Crown land on the north shore of North Buck Lake.
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8.3.12 Lake Capacity Comprehensive technical lake capacity study methodologies Studies have been developed to ascertain the maximum shore land development capacity (residential, recreational, institutional) that a lake can accommodate without negative impacts on water quality, fish habitat and recreational enjoyment. The County will seek to partner with the respective summer villages, relevant non-profit associations and interest groups, and the Alberta Government to initiate such studies for the five Major Lakes. The County target is to initiate the studies during an 8 year period - 2016 to 2024. The County is scheduled to complete a recreation master plan (2016); this plan will provide important background information for the comprehensive lake studies.
8.3.13 Less Developed The shore land of the Less Developed Lakes is, in large part, Lakes Crown owned. Public recreation is and will continue to be the predominant land use on the shores of these lakes. Public recreation uses normally include organized campgrounds, day use areas, lodges and trails, and wilderness use with development undertaken by public, community, non-profit and private interests. Wilderness use is a limited form of public recreation use that includes cross country skiing, off-highway vehicle (ATV) use, snowmobile use, hiking, and tenting. Development within the Lakeshore Management Policy Areas of Hope Lake, Narrow Lake, Cricket Lake, Round Lake, and the North Basin of Crooked Lake shall be limited to wilderness use.
8.3.14 Agriculture Many quarter sections within the Lakeshore Management Policy Area are actively farmed. The County, through the Agricultural Services Board, will continue to discourage agricultural practices such as the spraying of pesticides and chemicals, the use of lawn fertilizers near the shore, and certain storm water practices that may have a negative impact on lake water quality, fish habitat or the lakeshore environment. In addition, the County will limit intensive recreational and residential development on better agricultural land. 8.3.15 Recreational Lakeshore areas are in demand for recreational development Activities as well as residential use. Recreational uses include both water-based and land-based uses. Applications for new recreational developments in the Lakeshore Management Policy Area will be evaluated on a site-specific basis. When reviewing recreational development proposals including redistricting, subdivision and development applications, the County shall have regard to the following criteria in addition to that noted in 8.3.6:
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a. The proposed use should not generate a level of noise such that there would be an impact on nearby uses; the County may request a noise level study; b. Small scale campgrounds (25 units or less) are likely to have less impact on the lake environment and are normally more appropriate for lakeshore areas. The County supports the development of smaller scale campgrounds, where appropriate. All new campgrounds shall be required to provide onsite sewage treatment and disposal in conformance with the Alberta Private Sewage Disposal Systems Regulation, as amended. 8.3.16 Natural The County views natural resource extraction and industrial Resource development as uses that are incompatible with the Extraction and objectives of the Lakeshore Management Policy Area. Industrial Despite the provisions contained in Section 7, the County will Development not support natural resource extraction (including aggregate extraction) and industrial development within the Lakeshore Management Policy Area. 8.3.17 Developmen Residential subdivision and development proposed within t Standards the Lakeshore Management Policy Area shall comply with the following standards: a. The clearing of vegetation on each lot shall be minimized; b. Residential development shall not be permitted within 35 m of the lake shoreline; c. Public wells shall be provided by the developer as required; d. Land developers shall clear and post all walkways to the satisfaction of the County; and e. Upon obtaining the required Provincial approvals, a land developer shall construct the boat launching facilities required by the County to the County’s satisfaction, keeping shoreline disturbance to a minimum.
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PARTPART III III — — ENHANCING ENHANCING COMMUNITY COMMUNITY
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9.0 Environmental Management
9.1 Background Athabasca County’s rich natural landscape and wildlife resources are valued by County residents and seen as an important quality of life element. The natural environment is also a major attraction for visitors and a component of the County’s tourism strategy. The natural features and characteristics of the area provide significant habitat for waterfowl, shorebirds, moose and white-tailed deer. The County recognizes that human activity and development impacts the viability of natural eco-systems and wildlife. The County believes that the responsibility for environmental management is shared by Canada, Alberta, the municipality, not-for-profit organizations, local businesses and individual residents. The intent of this section is to guide land use and development in order to protect and conserve environmentally significant areas, biodiversity and wildlife habitat in a manner that complements population growth and economic development.
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9.2 Objectives The Environmental Management Policy objectives are to:
• Manage and maintain a healthy natural environment for future generations; • Identify and protect environmentally significant areas; • Minimize risks from natural or human made hazards; • Contribute to the protection and sustainable utilization of water resources; • Protect and enhance fish and wildlife habitat; and • Ensure public access to the natural environment. 9.3 County Policies
9.3.1 Environmental The County will strive to recognize and appropriately protect Protection areas with significant landscape, environmental and biophysical features through the use of available municipal land use planning and management tools including area structure plans, the land use bylaw, environmental reserves, and conservation easements. 9.3.2 Environmental The Municipal Government Act (MGA) allows a municipality Reserves (ER) to claim Environmental Reserve (ER) dedication when land is being subdivided. Land claimed as ER becomes municipally owned land. Consistent with the MGA the County shall require ER to be dedicated if a proposed subdivision: a. Includes a swamp, gully, ravine, coulee or natural drainage course; b. Contains land that is subject to flooding or is unstable; c. Abuts the bed and shore or any lake, river, stream or other body of water and a strip of land required for the purpose of preventing pollution or providing public access to the bed and shore of the water body. The County may require the preparation of a geotechnical report, a biophysical assessment and or a hydrological study to support the proposed dedication. The determination of the width of an ER depends on the nature of the specific water body or wetland or natural feature. In an effort to base the width of an ER on site specific circumstances riparian matrix setback models have been prepared and adopted by a number of Alberta rural municipalities. Athabasca County will initiate the preparation of a riparian matrix setback model by 2017.
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9.3.3 Environmental An Environmental Reserve Easement (ERE) is a planning tool Reserve Easements that may be utilized to preserve/protect natural areas as an alternative to an ER. An ERE may be more appropriate in areas of less intensive development or where the public is unlikely to utilize it; and it does not require the municipality to assume ownership of the land in question. The County will consider utilizing an ERE rather than claiming an ER dedication where the site in question contains valued environmental features yet where, in the County’s opinion, there would be no municipal benefit to owning an ER. ERE land must remain in its natural state as if it were owned by the municipality; it may be used to provide access to a natural feature.
9.3.4 Conservation A conservation easement is a voluntary agreement that Easements landowners may enter into to protect the natural values of all or a part of their land without relinquishing ownership. Conservation easements are governed by provisions of the Alberta Land Stewardship Act, 2009, as amended. The County supports the use of conservation easements as a land use management tool in conserving sensitive lands, natural and wildlife habitat and unique landscapes for the use and enjoyment of future generations and encourages land owners interested in ecosystem conservation to pursue implementing such easements.
9.3.5 Environmentally Environmentally Significant Areas are areas that contain Significant Areas rare or unique elements that may require special management consideration if conservation and long-term maintenance of biological diversity, soil, surface water and groundwater is to be achieved. The generalized location of Athabasca County’s environmentally significant areas is shown on Map 3, Environmental Management: the map is based on a Provincial report - Environmentally Significant Area (ESA) in Alberta: 2014 Update. The quarter sections designated as “environmentally significant” are located throughout the County with concentrations in the southeast, the northeast, the northwest, and in parts of the Athabasca and Tawatinaw River valleys. When evaluating redistricting, subdivision, and development applications within or adjacent to the environmentally significant areas identified on Map 3, the County shall have particular regard to the potential environmental impact of the development proposal.
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9.3.6 Environmentally The information on Map 3 was prepared at a provincial scale. Significant Area An environmentally significant area study prepared at a (ESA) Study municipal scale provides more detailed and locally accurate information and allows a municipality to clarify conservation priorities and develop site-specific conservation programs. In cooperation with local conservancy, stewardship and watershed groups and Alberta Environment and Parks the County will pursue funding and cooperation agreements with a view to initiating a comprehensive municipal ESA study by 2019 and completing the study by 2020.
9.3.7 Key Wildlife and Athabasca County’s wildlife resources and wealth of Biodiversity Zones biodiversity are valued by County residents. Regionally significant habitat exists for shorebirds, waterfowl, moose and white-tailed deer. Map 3 identifies the location of key wildlife and biodiversity zones identified in provincial studies; the zones are focused on the Athabasca and Tawatinaw River valleys and on the southeastern portion of the County. To contribute to the long term protection of the wildlife and biodiversity resources the County may request redistricting, subdivision and development proponents in the key wildlife and biodiversity zones to prepare impact assessments. When making decisions on redistricting, subdivisions and development applications, the County shall have particular regard to the potential biodiversity impact of the development proposal including proposed mitigation measures. 9.3.8 Subdivision and The County shall refer subdivision and development Development applications in and within 1.0 km of a key wildlife and Applications biodiversity zone to the appropriate Provincial departments and agencies for comment and review. Subdivision and development in or adjacent to a key wildlife and biodiversity zone shall be approved only when it has been demonstrated to the satisfaction of the County that it will not jeopardize or significantly impact the resources vital to habitat and species maintenance. 9.3.9 Environmental When reviewing a redistricting, subdivision or development Impact Assessments application or when establishing the required contents of an Area Structure Plan for an area identified as an ESA or as a key wildlife and biodiversity zone on Map 3, the County may require an environmental site assessment or environmental risk assessment to be prepared by a qualified professional biologist or environmental scientist. In determining whether an environmental site assessment will be required the County will consider:
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a. The nature of the proposed use; b. The current and historical use of the subject property and surrounding lands; and c. Information from other sources to determine if the subject property may potentially contain environmental contaminants. The environmental study shall identify and assess the environmental significance and sensitivity of existing vegetation, wetlands, water bodies, ground water, alluvial aquifers, wildlife habitat, species at risk and unique physical features, and shall recommend appropriate measures for mitigating potential adverse impacts, and protecting and enhancing environmentally significant features. 9.3.10 Hazard Lands Hazard lands may be found in the vicinity of swamps, gullies, ravines, hillsides or natural drainage courses or adjacent to the bed and shore of lakes, rivers or streams. The County will limit development on hazard lands except for extensive agricultural uses, passive recreational uses and short term resource extraction approved on a site- specific basis. The County shall not allow subdivision or development in areas that are prone to flooding, erosion, landslides, subsidence or any other natural or human- induced hazards. Development on escarpments and steep or unstable slopes may be considered only if recommended in a geotechnical study prepared by an accredited professional. No alteration to the bed and shore of a water body shall be permitted without the necessary approval from the appropriate Provincial or Federal government department or agency. 9.3.11 Development When reviewing subdivision and development proposals, Restrictions in Flood Athabasca County shall not allow the subdivision of land or Plains the construction of permanent structures, other than pathways and associated structural components, or interpretive elements within the 1:100 year floodplain of the County’s rivers, streams, and natural watercourses, except that consideration may be given to the construction of a structures with flood-proofing features designed to the County’s satisfaction by an accredited professional.
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9.3.12 Rivers and Streams The County shall require that there be a minimum riparian Top of Bank setback width of 100 m from top-of-bank or the 1:100 year Setbacks high water mark (whichever is greater) of the Athabasca River and 35 m from the top-of-bank or the 1:100 year high water mark (whichever is greater) of all other streams and creeks. The County may vary this development setback when supported by a geotechnical investigation and/or an engineering assessment for the proposed development. Where there is no defined bed and shore the County may require the preparation of a biophysical assessment by a qualified professional. Where a subdivision or development is proposed adjacent to a water course or the top-of-bank the County may require that the high water mark or the top- of-bank location be determined by an Alberta Land Surveyor. 9.3.13 Development Athabasca County wishes to protect the County’s Adjacent to or watersheds in order to maintain the quality and quantity of Near Permanent surface and ground water systems. In evaluating Water Bodies redistricting, subdivision and development proposals within the Lake Policy Area or within 1000 m (1 km) of the Athabasca River valley or the Tawatinaw River valley or adjacent to any other stream, lake or permanent water body the County may require: a. The preparation of an environmental impact assessment (See 9.3.9); and/or b. An onsite provincially-approved private sewage disposal system designed to prevent sewage from seeping in the water body or a provincially approved communal sewage treatment system. In evaluating subdivision and development proposals near shores of lakes, rivers and streams the County shall have regard to: a. Any potential for a reduction in water quality and water flow, soil erosion, tree or vegetation removal, bank instability or bank damage; b. Any potential adverse effect on the natural amenities, physical features, or recreational potential of the shoreline or on fish and wildlife; and c. Any potential restriction to public access to the water resource. 9.3.14 Conservation of When reviewing area structure plans, subdivision Natural Features applications and redistricting applications, the County shall liaise with provincial departments and agencies and conservation organizations to identify, protect and enhance significant natural features, and wildlife and fish habitats with a view to: a. Incorporating habitats such as lakes, rivers, streams, wetlands, and wildlife corridors into parks and open spaces; 76 of 110
b. Ensuring that trees, natural vegetation, and wetlands are not removed or filled; c. Ensuring that alteration to the natural topography is minimized; and d. Exploring programs and incentives intended to assist land owners in maintaining fish and wildlife habitat. 9.3.15 Treed Areas Treed areas are valued by County residents, are an important component of habitat and landscape conservation, and are often at risk when residential, commercial, industrial or recreational development takes place. This is especially the case within or near key wildlife and biodiversity zones (See Map 3). The County may, as a condition of subdivision or development approval, require the protection of treed areas through reserve dedication, easements or design. Treed areas may also be preserved through voluntary arrangements such as conservation agreements or land trusts. 9.3.16 Wetland Wetlands are a valuable component of Alberta’s diverse Conservation landscape; wetlands play a significant role in maintaining watersheds and water quality, providing flood relief, sustaining biodiversity and providing opportunities for recreational activities. Alberta’s Wetland Policy (2013), as amended, provides a strategic framework of wetland management for both the White Area (settled region) and the Green Area (Crown Land) across the province; it seeks to support the conservation, restoration, protection and management of wetlands by implementing a management system that provides clear direction and comprehensive guidelines to various interest groups. When reviewing Area Structure Plans, redistricting, and subdivision and development proposals, the County’s decisions shall be consistent with the Alberta Wetland Policy. The County shall require that a redistricting, subdivision or development proponent determine if wetlands will be impacted and prepare, if required, a Biophysical and Wetland Assessment and Impact Report. In wetland areas, proponents shall be required to avoid wetland damage or destruction, minimize the impact of the proposed development on wetlands and address the provision of compensation consistent with the conditions of the Alberta Wetland Policy and related Directives. 9.3.17 Wetlands Local The availability of detailed information and mapping will assist Study the County in the long term protection of wetlands. In cooperation with Alberta Environment and Parks the County will evaluate the need to prepare a comprehensive wetlands inventory and conservation policy, and, if beneficial, seek project support from the Province and conservation groups. Progress will be reviewed in 2018. 77 of 110
9.3.18 FireSmart Wildfire is a frequent occurrence due primarily to lightning Practices and human-caused incidents relating to residential and recreational use. Minimizing wildfire contributes to the protection of the natural environment, the maintenance of healthy Boreal forest ecosystems; Athabasca County is a partner in the FireSmart program which aims to reduce wildfire risk. As area structure plans are prepared the developer shall integrate FireSmart principles and preparedness into community design. Applicants for subdivision or development in forested areas shall be required to submit a Fire Hazard Assessment. Applicants may also be required to implement wildfire mitigation guidelines as contained in the Partners in Protection Program – FireSmart: Protecting Your Community from Wildfire” (2003) as a condition of subdivision or development approval. Subdivision and development proposals should be designed so as to minimize wildfire damage potential by providing municipal reserve, firebreaks and/or trails along the outer edge of the development. Applicants for subdivision or development in potential fire areas shall be required to provide details of adequate water supply for firefighting purposes consistent with the Alberta Safety Codes Act, as amended.
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10.0 Parks, Open Space and Recreation
10.1 Background Athabasca County is characterized by an abundance of amenities ideally suited for a variety of outdoor recreation pursuits. In combination, parks, open spaces and the natural environment provide the backbone for an integrated system. River corridors, ponds, wetlands, forests, and lakes linked with public parks, recreation areas, greenways, and multi-use trails ensure that public access and enjoyment by residents and visitors is established and sustained for future generations. The County anticipates increasing pressures on its parks, open spaces and recreational resources and is pursuing a comprehensive planning and development approach to parks and open space land management. 10.2 Objectives The Parks, Open Space, and Recreation policy objectives are to: • Support comprehensively planned recreation and tourism uses that are compatible with agricultural uses at appropriate locations. • Ensure that the County has a network of parks, open spaces and land for recreational facilities that responds to the needs of residents and visitors and complements the municipality’s natural features.
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• Promote an environmentally sensitive and sustainable parks and open space system; • Address municipal and environmental reserve requirements during the subdivision approval process; and • Work in partnership with stakeholders to meet the County’s park, open space and recreation objectives. 10.3 County Planning Policies
10.3.1 Municipal When land is being subdivided, the County is able to claim up to Reserve (MR) and 10 percent of the land to be subdivided for Municipal Reserve School Reserve (MR) or School Reserve (SR) or a combination of both consistent (SR) Dedication with Part 17 of the MGA. The County will focus the acquisition of MR land: a. In multi-lot country residential subdivisions and in hamlets to provide parks and play areas serving the needs of local residents ; and b. Adjacent to the shorelines of lakes and rivers where the provision of MR land will complement wildlife, waterfowl and fish habitat conservation efforts and increase public lake access availability, complementing the provision of nearby environmental reserve (see 9.3.2). 10.3.2 Use of Municipal Lands acquired as Municipal Reserve shall be used as public Reserve Land parks, public recreation area, as open space to separate areas of land that are for different purposes and, where required, for school board purposes (see 10.3.4). Public parks and open space should be designed to take advantage of the natural landscape and to complement adjacent uses. MR will be used in the development of the County’s trail system connecting parks with residential subdivisions. The County may consider the use of Municipal Reserves for a public library, an emergency services facility, a non-profit day care facility, a non-profit senior citizens facility, a non-profit special needs facility, a municipal facility and/or an affordable housing development in which case disposal of the MR consistent with the Community Service Reserve provisions of the MGA will be required. 10.3.3 Cash-in-lieu of Consistent with MGA provisions, the County may require cash- Municipal in-lieu instead of MR dedication. The County will exercise the Reserve cash-in-lieu option: a. Where the parcel being subdivided will generate a minimal amount of reserve land; b. Where adequate park space has already been provided nearby; and
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c. Where the predominant land use is commercial or industrial and the creation of a reserve parcel is deemed to be of no functional value. Athabasca County will utilize a standard formula for the calculation of a cash-in-lieu value based on County assessed values and/or market value appraisals and review that formula every two years. Cash-in-lieu will be used for the acquisition of additional parkland and the maintenance of existing park and open space consistent with the applicable MGA provisions. Area structure plans for residential, commercial or industrial use shall establish the municipal reserve acquisition strategy for that particular area. 10.3.4 School Reserve The MGA requires municipalities to coordinate with local school authorities regarding the use of reserve land and the use of cash-in-lieu. Though there are schools currently located in the County’s hamlets, new schools are not normally constructed in rural areas. The County will cooperate with the Aspen View Public School Division and the Northern Lights School Division relating to the need for and location of new school sites, the use of municipal reserve land and cash-in-lieu collected during the subdivision approval process. In particular, the County will explore the need for a joint use agreement with school authorities to address the use of MR land for recreational purposes and school facilities.
10.3.5 Deferred Alberta legislation allows a municipality to delay claiming Reserve Caveat reserve land until a later stage in the subdivision process through the use of a deferred reserve caveat. The County will consider utilizing the MGA’s deferred reserve provisions, rather than requiring cash-in-lieu, where: a. A subdivision creates a remnant parcel larger than 4 ha (10 acres); or b. Where land is being assembled for a school site or a recreation facility. 10.3.6 Regional Trail A segment of the Trans Canada Trail traverses Athabasca System County. The historical Athabasca Landing Trail which tends to follow the Tawatinaw River Valley south of the Town of Athabasca and the Peace River Trail following the Athabasca River northwest of the Town of Athabasca are operational components of the national project. The Athabasca River to the northeast of the Town of Athabasca is part of the Arctic Water route component of the Trans Canada Trail. The County, in partnership with the participating neighbouring municipalities and with non- profit organizations including the Trans Canada Trail 81 of 110
Foundation and Alberta TrailNet, will continue efforts to develop the Athabasca Landing Trail and the Peace River Trail as continuous recreational trails following historic routes and to plan and implement a regional trail system connecting local points of interest with national and provincial networks. Landowners shall be consulted regarding potential conflicts related to increased public access to farmland. 10.3.7 Recreation The MDP is a high level policy plan focusing on the provision Master and management of land for parks, open space and Plan recreation purposes; municipalities normally require complementary studies with a view to maximizing recreation and tourism potential and managing activities and operations. The County has initiated (2015) the preparation of a recreation needs assessment and master plan which will complement the parks and open space policies of the Municipal Development Plan. 10.3.8 Off-highway The County recognizes that the use of off-highway vehicles Vehicle Trail is important to residents and visitors for recreation, active System living and sport and that related activities contribute to Strategy local economic development. The County also recognizes that a trail system must minimize safety risks and reduce the potential of trespass on private land. The County is committed to working with provincial departments, neighbouring municipalities and community stakeholders on the investigation of an Off- Highway Vehicle Trail System Strategy. 10.3.9 River Corridors The Athabasca River originates in the Rocky Mountains in Jasper National Park and flows northeast through Alberta for over 1500 kilometres until it empties into Lake Athabasca in Wood Buffalo National Park. A substantial part of the river flows through Athabasca County or forms the County boundary. Northeast of the Town of Athabasca the river is a designated water portion of the Trans Canada Trail system. Within the County the Tawatinaw River is the Athabasca River’s major tributary, flowing south to north and emptying into the Athabasca River at the Town of Athabasca. The County recognizes the natural beauty, historical significance, and habitat and recreational importance of the Athabasca and the Tawatinaw river valleys. The County also recognizes that the river valleys contain privately-owned land that has traditionally been used for agricultural and residential purposes. The County designates: a. All land adjacent to the Athabasca River identified as a Key Wildlife and Diversity Zone on Map 3 extending approximately 1 km from the river bank as the 82 of 110
Athabasca River Corridor, and b. All land adjacent to the Tawatinaw River identified as a key Wildlife and Diversity Zone on Map 3 within approximately 1/2 km of the Tawatinaw River as the Tawatinaw River Corridor (see Map 3). 10.3.10 River Corridor The predominant land use in the Athabasca and Tawatinaw Planning Policies Corridors shall be a compatible mix of recreational, residential, agriculture and public uses with a focus on biodiversity, wildlife and natural landscape conservation. The river corridors are within the environmentally sensitive areas designated in Section 9.3.5. In addition to the applicable policies established in Section 9, when evaluating planning proposals the County will ensure that: a. Development does not jeopardize the establishment of a natural open space and recreation corridor system adjacent to the river; and b. Structures that could be damaged by flooding or land uses that would impede flood waters are not located within the 1:100 year flood zone. The County recognizes the contributions made by the Athabasca Watershed Society, the Central Athabasca Stewardship Society, and the Tawatinaw Watershed Stewards to the conservation and protection of the ecological health of the watersheds. The County will initiate partnerships with one or more watershed societies where projects are deemed to benefit from a joint effort.
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11.0 Recreational Vehicles and Recreational Vehicle Parks
11.1 Background Athabasca County’s natural environment and year-round amenities have made recreational vehicles a popular mode of accommodation for seasonal residents and short-term visitors. A recreational vehicle (RV) is a portable unit designed for travel, camping or recreation that provides sleeping and other facilities for temporary accommodation from a few days to an entire ‘season.’ RVs are normally transported behind a vehicle and include a wide range of types and sizes including park model trailers, fifth wheel trailers, travel/holiday trailers, motorized campers, and tent trailers. Park model units require a connection to onsite utilities and services for the operation of installed fixtures and appliances, and are designed to be moved only occasionally - an ‘oversized’ highway permit may be needed to transport a park model RV. Recreational vehicles are utilized for both seasonal camping where they remain in one spot for the entire camping season, and short-term camping where they are located at a specific spot for one day to several weeks. Recreational resorts, areas designed specifically to accommodate one or more types of RV’s, may include RV parks and RV campgrounds. Recreational vehicles are not approved by the Alberta Building Code for permanent long term accommodation.
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Accommodating the RV camping demand contributes to the County’s economic development and tourism objectives. Substantial input was received on the impacts recreational vehicle placement may have on nearby residences, local areas and agricultural operations during the MDP public consultation process. This section focuses on the County’s Recreational Vehicle Accommodation Strategies. 11.2 Objectives Athabasca County wishes to accommodate the continuing demand for recreational vehicles while maintaining the rural character of the community. The County intends to achieve the following objectives:
• Appropriately locate and design RV campgrounds; establish regulations relating to the storage and placement of RVs in campgrounds and on individual sites; • Enable a variety of RV accommodation options including timeshare camping, bareland condominiums, seasonal parks and short-term tourist campgrounds; and • Adopt and enforce development standards intended to create a sense of community and minimize potential land use conflict with neighbours. 11.3 County Policies
11.3.1 RV Strategies The County will make provisions for a variety of RV accommodation options in the Land Use Bylaw. All placement options and regulations will attempt to minimize potential conflict with surrounding uses and minimize any nuisance which may be caused by increasing densities in a rural setting.
11.3.2 Redistricting The County shall require the redistricting of land to the Required appropriate district prior to the development and/or subdivisions of campgrounds intended for recreational vehicle use. 11.3.3 Consultation The proponent of a redistricting application intended to allow Required a development and/or subdivision for a campground intended for recreational vehicle use shall be required to conduct a consultation with surrounding land owners and residents and include a summary report of the consultation with the application. 11.3.4 Locating When approving redistricting and development permit Recreational applications for recreational vehicle uses, the County will Vehicle attempt to minimize conflict with surrounding land uses and Developments nuisance which may be caused by increasing densities in a rural or agricultural setting. Recreational vehicle developments may be best located on marginal agricultural land, close to paved primary or secondary highways, and close to recreational opportunities and commercial services.
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11.3.5 Redistricting In reviewing proposals for the redistricting of land to Evaluation accommodate recreational vehicles, the County shall have Criteria regard to the following: a. whether the land is within the Agriculture Policy Area, Rural Development Policy Area or the Lakeshore Management Policy Area; b. the proposed location’s existing amenities and unique natural features; c. the number of recreational vehicle sites (developed or approved) in the vicinity of the proposed development; d. the proposed method of the onsite provision of water and sewer services; e. the provision of onsite amenities including the storage and management of off-highway vehicles; and f. the outcome of the consultation process conducted by the proponent as outlined in the consultation summary report submitted to the County by the proponent.
11.3.6 RVs as The County understands that the temporary placement of RVs Temporary on farmsteads, on country residential lots and in hamlets Accommodation provides County residents with the ability to provide friends and relatives with short term accommodation and to make use of vacant land on a temporary basis. The County will develop a separate Bylaw to provide for the use of RVs for temporary accommodation on agricultural and residential lots, parcels and quarter sections. Regulations, including time restrictions and maximum number of temporary RVs, will attempt to minimize potential conflict with surrounding uses and minimize any nuisance which may be caused by the temporary increase in densities in a rural setting.
11.3.7 Enforcement of The County shall liaise with recreation resort operators and Standards associations to ensure high quality operational standards are applied to site development and maintenance. The County will provide adequate resources to enforce municipal regulations and standards in situations where recreational vehicle development has taken place without County approval.
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12.0 Transportation and Utility Infrastructure
12.1 Background/Intent The future development of Athabasca County depends on high quality transportation and utility systems. Athabasca County has a well-developed road transportation network including provincial primary and secondary highways and County arterial and local roads. The County is responsible for the care and control of the local road system while Alberta Transportation is responsible for highways. The upgrading and maintenance of roadways and the provision and maintenance of municipal infrastructure is a significant portion of the County’s annual budget. Providing municipal services and infrastructure in an economic, environmentally sound and well-planned manner contributes to municipal financial sustainability. The objectives/policies in this section address the overlap between land use planning and development and the County’s transportation and utility network.
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12.2 Objectives The objectives of the Transportation and Utility Infrastructure section are to:
• Minimize any negative impacts associated with the development of linear transportation, communication, or utility facilities and services. • Ensure that the necessary infrastructure facilities, utilities, and services associated with planning approval and development are constructed in a timely manner. • Ensure that land use and development in the vicinity of existing or proposed transportation, communication, utility facilities/services, or sour gas facilities is regulated such that it does not interfere with their operation, upgrading or future expansion. • Ensure that municipal services and utilities are provided economically and efficiently, reflective of need, environmental constraints, and land use considerations. 12.3 County Planning Policies
12.3.1 Transportation Athabasca County’s existing highway network is shown on Roadway Map 2 while the local network detail is shown on the County Network Zoning Map. Working with Alberta Transportation, the County will maintain and protect the integrity of the provincial highway system while continuing to improve the efficiency of the local roadway network. The County will make efficient use of existing roadway facilities by encouraging development with the potential for substantial traffic impact to locate in the vicinity of roads designed and constructed to accommodate large traffic volumes. 12.3.2 Highway 63 The twinning of Highway 63 from Fort McMurray to the intersection of Highways 55 and 855 is scheduled to be completed in 2016; a substantial portion of this route traverses Athabasca County including the hamlets of Wandering River and Grassland. As a result of the twinning, access to Highway 63 from County roads is more limited than was previously the case, presenting challenges to businesses and residents along the Highway 63 Corridor. The County will continue to liaise with Alberta Transportation with the goal of ensuring that County residents and businesses have adequate access to Highway 63. 12.3.3 Wandering River Wandering River is one of the two major service centres on Highway 63 in Athabasca County providing fuel, food, vehicle maintenance, rest, and emergency services. The Wandering River Area Structure Plan addresses preferred access from the Hamlet to Highway 63. The County will work with Alberta Transportation to improve the flow of Highway 63 traffic in Wandering River, to minimize the impact on community residents, and to maintain and improve access to local businesses.
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12.3.4 Grassland The Hamlet of Grassland is one of two service centres along Bypass Highway 63 in Athabasca County. As well as providing local services Grassland provides fuel, food, vehicle maintenance, rest, and emergency services to Highway traffic. Future improvements to Highway 63 will include a re-routing of the Highway 63 to the north side of the Hamlet. The Grassland Area Structure Plan (2012) addresses preferred access from the Hamlet to Highway 63. The County will work with Alberta Transportation to improve the flow of Highway 63 traffic through Grassland, to minimize the impact on community residents, and to maintain and improve access to local businesses. 12.3.5 Athabasca A southeast bypass around the Town of Athabasca in the Bypass vicinity of Colinton (connecting Highway 2 with Highway 55) has been under discussion for some time. The County will continue to liaise with Alberta Transportation to identify the most suitable route; one that will support the long term prosperity of the County and the Town of Athabasca while, at the same time, minimize the impact on the Hamlet of Colinton
12.3.6 Provincial A development control zone exists within 300 metres of the Referral right-of-way of a provincial primary and secondary highway and within 800 metres of the intersection of the centre lines of a highway and a public road. Applications for subdivision or development within the development control zone will be required to obtain a road side development permit from Alberta Transportation as a condition of subdivision or development approved by the County. The County will refer all subdivision and development applications within 800 metres of a highway right-of-way to Alberta Transportation for review and recommendations. 12.3.7 Subdivision / The County shall require subdivision and development Development proposals along public roadways, including provincial Adjacent to highways, to: Roadways a. Provide a setback capable of accommodating future improvements or roadway widening; b. Provide legal and physical access to the proposed parcel and the remainder of the quarter section or parcel satisfactory to the County; c. Minimize the number of access and egress points to highways and to County arterial roads; d. Adjacent to a highway provide access to an internal roadway system or to a service road constructed to County standards;
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e. Maintain tree stands along the highway and/or visually shelter the development from the highway through the use of landscaping and screening where appropriate; and f. Obtain required approvals from Alberta Transportation.
12.3.8 County Master Comprehensive transportation planning is an important Transportation component of land use planning. A Transportation Master Plan Plan guides investment in operations, maintenance and expansion of the County road system. The County will evaluate the need to prepare/update a County long-range Master Transportation Plan to coordinate future roadway design and improvements with long-term plans and in cooperation with neighbouring municipalities and Alberta Transportation. The initiative should include capital and operation plans that would be reviewed and updated regularly to determine annual priorities. 12.3.9 Road Use New development involving large-scale movement of goods Agreements and/or natural resources such as sand and gravel, wood products and livestock may have a substantial impact on County roads that were not designed for such use. Where new development is expected to generate a substantial increase in commercial or resource-based traffic the County may, as a condition of development approval, request the proponent to provide a transportation impact assessment and, if applicable, enter into a road use agreement with the County. Such agreements may address matters such as haul routes and scheduling, impact on local residents, maintenance, dust control, and required upgrading. Road use agreements shall reflect the specific circumstances of the development proposal. In addition, the County supports partnership agreements with industry where new roads can be constructed and/or maintained jointly. 12.3.10 Developer Developers of land adjacent to local and collector roads and Responsibility highways shall be required to make any needed provisions for required future road widening and for the land required for service roads. Land developers shall also be responsible for constructing onsite and off-site roads required to provide service to new development areas to the County’s standards. All subdivision and development proposals shall include the provision of legal and physical access; an easement agreement and a License of Occupation do not constitute the level of access required to secure subdivision or development approval. 12.3.11 Location of As resource exploration and development and commercial and Linear industrial development takes place, land is often required for Infrastructure roads, rail lines, pipelines, transmission lines, other linear infrastructure, or for oil or gas wells. When such development is being planned the County will encourage the selection of locations that: 92 of 110
a. Minimize the impact on better agricultural land; b. Allow the integration of transportation routes and utility lines within defined corridors; c. Allow rights-of-way to follow quarter section lines, property boundaries or existing easements; d. Avoid residential areas; e. Minimize the creation of fragmented parcels between rights-of-way; and f. Minimize the impact on recreational, historical, natural and wildlife resource areas. 12.3.12 Public Utility Any lands required for a Public Utility shall be designated as Lots (PULs) PUL by the County Subdivision Authority. 12.3.13 Resource Roads Resource development projects may require access roads to be constructed and managed by the project proponent rather than by the municipality. Resource development projects require provincial approval; while participating in the Provincial approval process the County will recommend that resource roads be located on County road allowances and constructed to County standards. 12.3.14 New Land developers are responsible for the provision of water, Development— sewer and stormwater facilities required to service new Water, Sewer, subdivisions and development areas. Where municipal water and Stormwater and/or sewer services are available, all new development shall Provision connect to municipal services consistent with County policies and at the developer’s expense. The County may recover municipal investment in off-site infrastructure related to the proposed development through the provisions of the County off-site levy bylaw. Where municipal water and sewer infrastructure is not available, the following are servicing options: a. A communal water and/or sewer system designed by a qualified professional engineer and approved by Alberta Environment and Parks to be operated and maintained by a condominium association or community organization or water from the ARWSC; b. An onsite sewage disposal system that meets provincial legislation and regulations; c. An onsite well supported by a report prepared by a qualified individual showing that an adequate water supply is available. Developers of commercial, industrial, and country residential subdivisions in rural and lakeshore areas and all multi-lot developers in hamlets may be required to submit a stormwater management plan to address runoff control satisfactory to the County and, if applicable, to Alberta Environment and Parks. 93 of 110
Where stormwater management creates an off-site impact the developer may be required to fund the upgrading needed to mitigate the impact.
12.3.15 Development A development agreement shall be required as a condition of Agreements subdivision approval and may be required as a condition of a development permit approval. Development agreements implemented pursuant to the provisions of the Municipal Government Act allow the County to place conditions on subdivision approval that benefit all municipal rate payers. When a development agreement is required as a condition of a subdivision approval or development approval, the provisions of the development agreement shall be consistent with the relevant MDP policies. 12.3.16 Transit Service Public transit service in Athabasca County is limited; the Community Transportation Handi-Bus and Handi-Van provide local services and residents requiring transportation rely on taxi services and on services offered by senior’s accommodation providers and health agencies. The County will encourage local service agencies, the private sector, and key public institutions to support initiatives to establish additional transit services to meet the needs of the local population.
12.3.17 Airports Airports are located near Athabasca and Boyle. There is limited non-agricultural development in the vicinity of the airports. To contribute to the safe and effective airport management the County shall review all subdivision and development proposals in the vicinity of the airports with a view to minimizing any potential negative impacts while supporting the development of airport related commercial and light industrial development. To regulate building height in the vicinity of the airports the County has adopted a ‘Special Height Regulations Overlay’ in the Land Use Bylaw.
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13.0 Community Culture and Heritage
13.1 Background Athabasca County has a rich cultural heritage and a variety of cultural landscapes. Among the significant historical resources are the Athabasca Landing Trail, Athabasca River Corridor and Tawatinaw Heritage Corridor. Beginning in the 1890’s the Landing Trial, also known as ‘the 100 Mile Portage,’ linked Fort Edmonton to Athabasca and the Athabasca River which was the major route for travelers, missionaries, surveyors, prospectors and settlers moving into northern Alberta and northern Canada. The intent of the objectives and policies section is to ensure that planning strategies and decisions enhance community culture; and identify and conserve the County’s archaeological and historical heritage. 13.2 Objectives The community culture and heritage objectives are:
• To identify and preserve historical resources throughout the County. • To protect the Athabasca Landing Trail and River Corridor and the Tawatinaw Heritage Corridor.
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13.3 County Policies
13.3.1 Historical The Alberta government has supplied information on Resources Athabasca County’s historic resources; the following sites and Conservation areas are worthy of planning attention: a. A site in SW23-66-20-W4 south of Amber Valley that has been designated as a Provincial Historic Resource; b. A site in SW31-65-22-W4 has been designated as a Registered Historic Resource; c. The Athabasca and Tawatinaw River valleys and the Muskeg Creek valley southwest of the Town of Athabasca have been identified as areas containing widespread archeological, historic and paleontological resources that will likely require avoidance. Athabasca County supports the conservation of historical resources through preservation, rehabilitation and restoration initiatives. Designated historical resources shall be protected from adverse impacts associated with onsite or adjacent developments. Historical resources can include a landscape, historic district, place, site, building, structure or object that is deemed to be significant to Alberta’s natural or human history. 13.3.2 Historical The County shall require a Historical Resources Impact Resources Assessment to be prepared in the following situations: Impact a. Alberta Culture and Tourism requires a Historical Assessments Resources Impact Assessment under the Historical Resources Act, as amended, in preparation of a new Area Structure Plan or subdivision; or b. When reviewing an area structure plan, redistricting application or development proposal that has the potential to impact the sites and areas noted in 12.3.1.
13.3.3 Municipal The County may consider designating municipally significant Designation of historical sites or properties through Bylaw, in consultation Historical with the Provincial government and the affected property Resources owner, where it considers such action to be in the public interest. Designation shall be based on the most recent edition of the Standards and Guidelines for the Conservation of Historic Places in Canada.
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13.3.4 Tawatinaw River The Tawatinaw Corridor and the Athabasca Corridor have been Corridor and identified as Environmentally Significant Areas and Key Wildlife Athabasca River and Biodiversity Zones (see Map 3) and as major recreational Corridor trail routes. These corridors are also of significant historical importance. While country residential development may be appropriate in some areas within the corridors, new proposals should be directed to existing developed areas to minimize negative impact on wildlife, loss of habitat and historical resources in the corridors. 13.3.5 Future Studies The County will continue to cooperate with provincial agencies and community-based organizations to develop a cultural, historic, recreation, tourism and development plan associated with the Athabasca River and Tawatinaw Heritage Corridors.
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14.0 Intermunicipal and Intergovernmental Cooperation
14.1 Background The Town of Athabasca and the Village of Boyle are urban municipalities situated within Athabasca County. Growth and development in an urban municipality benefits the County, just as growth in the County has spinoff benefits for nearby urban communities. Regional economic development initiatives often do not recognize municipal boundaries; coordinated planning between urban and rural municipalities benefits the entire region. Planning for the urban fringe areas is an important component of the County’s long range land use planning. Athabasca County is home to eight summer villages on three major lakes (Baptiste Lake, Island Lake and Skeleton Lake). Summer villages are incorporated municipalities. Originally accommodating only summer residents, summer villages have evolved to now house permanent as well as seasonal residents. Athabasca County and each of the summer villages have a shared interest in the long term health and sustainability of the County’s major lakes. Land use planning responsibilities are shared between municipalities and the Province. The Municipal Government Act recognizes the provincial role in areas such as resource development and highway planning and management. In addition, approximately one-third of
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the County is Crown land where there is a shared responsibility for planning decisions. Athabasca County wishes to maintain its productive working relationship with the Provincial departments and agencies responsible for transportation, resource development and Crown Land management. 14.2 Objectives The Intermunicipal and Intergovernmental Cooperation Policy objectives are to: • Support the effective and orderly growth of Athabasca and Boyle through cooperative intermunicipal planning strategies; • Establish joint planning and servicing strategies with summer villages with a view to maintaining the health of lake ecosystems. • Enhance regional cooperation and partnerships by pursuing and investing in joint initiatives such as shared services and resources. • Work cooperatively with the Government of Alberta in areas of shared planning responsibilities and mutual interests. 14.3 County Policies: Planning Co-operation with the Town of Athabasca and the Village of Boyle
14.3.1 Intermunicipal There are two urban municipalities within Athabasca County. Development Intermunicipal Development Plans (IDPs) establish mutually Plans beneficial policies for the land area immediately surrounding an urban municipality, guide subdivision and development decisions and potentially limit conflicts between municipal neighbours. The County will continue to participate in intermunicipal development plan initiatives with the Town of Athabasca and the Village of Boyle. 14.3.2 Intermunicipal In principle the County supports IDP policies that focus on: Development a. Appropriate commercial/industrial uses that cannot be Plan Criteria accommodated in the respective urban municipality; urban fringe areas are not expected to accommodate residential development while the land is still within the County; b. Joint Servicing Agreements: situations where hard or soft services can be provided by one municipality on behalf of the other to minimize costs; and c. Anticipated annexation initiatives: Proposed annexation areas shall avoid higher capability agriculture lands; the County will support annexation initiatives outlined in an adopted intermunicipal development plan.
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14.3.3 Town of The Town of Athabasca/Athabasca County Intermunicipal Athabasca Development Plan (2011; amended 2014) addresses land use Fringe Area and development in a defined area surrounding the Town. This area is designated as the Urban Fringe Policy Area around the Town of Athabasca on Map 2. The County, in conjunction with the Town of Athabasca, will initiate a review and update the Intermunicipal Development Plan by mid-2018 to reflect changing legislative, land use and development requirements. The County shall refer redistricting, subdivision and development applications within the Town/County IDP area to the Town of Athabasca and make decisions consistent with IDP provisions.
14.3.4 Village of Boyle The commercial and industrial development potential for the Fringe Area area adjacent to the Village of Boyle has been discussed for some years as part of Highway 63 Corridor strategic planning. This area is designated as the Urban Fringe Policy Area around the Village of Boyle on Map 2. Several quarter sections and 80- acre parcels adjacent to the Village boundaries have been zoned for heavy industrial, highway business or similar uses, creating the potential for increased development and a demand for urban services in the fringe area. An Intermunicipal Development Plan has not been prepared for the Boyle fringe area. The County will monitor development demand in the Boyle area and initiate the preparation of a Boyle Intermunicipal Development Plan in cooperation with the Village to address planning strategies by mid-2018. The County shall refer redistricting, subdivision and development applications within the Boyle urban fringe policy area to the Village of Boyle and have regard to the Village’s recommendations.
14.3.5 Annexation Athabasca County may support an annexation application by the Town of Athabasca or the Village of Boyle if: a. The land in question has been identified for annexation in an Intermunicipal Development Plan or agreement; b. The land to be annexed is required to accommodate short to medium term anticipated growth; c. The proposed annexation area includes mainly marginal agricultural land; and d. Provisions for tax or revenue sharing have been negotiated.
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14.3.6 Planning The County will meet at least once every two years with the Updates Town of Athabasca and the Village of Boyle to address current intermunicipal planning challenges.
14.4 County Policies: Planning Cooperation with Summer Villages
14.4.1 Intermunicipal There are 8 summer villages within Athabasca County; planning Cooperation issues often traverse municipal boundaries and neighbouring municipalities often have common goals and benefit from cooperative efforts.
14.4.2 Referrals The County will refer redistricting, subdivision and development applications within 1.6 km of a summer village boundary to the summer village concerned and have regard to that municipality’s recommendations.
14.4.3 Joint Water and The County supports the use of regional and communal water Sewer and sewer systems for developed lands adjacent to lakes. The County will explore the feasibility of developing regional and communal systems with summer villages, either individually or jointly. Discussions have taken place regarding the potential for the extension of the ARWSC to the Baptiste Lake communities. The County, in cooperation with the Baptiste Lake summer villages and the regional water authority, will initiate a Baptiste Lake Water Line Feasibility Study by 2020.
14.4.4 Roads Roads in or near summer villages are utilized by County and summer village residents. Where practical, the County will pursue agreements with summer villages related to roadway planning, construction, maintenance and operations.
14.4.5 Joint Lake The County shares a mutual interest in lake health and Planning lakeshore planning and development with the 8 summer villages. The County will cooperate with summer villages in lake planning initiatives such as the joint lake planning study noted in 8.3.12. 14.4.6 Planning The County will meet at least once every 2 years with the 8 Updates summer villages, either individually or jointly, to address current intermunicipal planning challenges and programs.
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14.5 County Policies: Planning Cooperation with Adjacent Municipalities
14.5.1 Intermunicipal Athabasca County is surrounded by 6 rural municipalities; Cooperation planning issues often traverse municipal boundaries and adjacent municipalities often have common goals and benefit from cooperative efforts.
14.5.2 Referrals to Athabasca County will refer redistricting, subdivision and Adjacent development applications within 3.2 km of the boundaries of Municipalities Thorhild County, Westlock County, Municipal District of Lesser Slave River, Municipal District of Opportunity, Lac la Biche County and Smoky Lake County to the municipality concerned and have regard to that municipality’s recommendations. The County may, but is not required to, refer redistricting and subdivision applications more than 3.2 km from the boundaries of the adjacent municipality to that municipality, and have regard to that municipality’s recommendation if the County determines that the proposal would significantly impact the adjacent municipality. 14.5.3 Shared Services Athabasca County will continue to pursue potential regional cost-sharing arrangements for services such as fire and emergency services, social services, economic development and tourism, recreation, and water and sewer services with a view to minimizing costs and maximizing efficiencies.
14.6 County Policies: Planning Cooperation with the Province of Alberta
14.6.1 Crown Land An estimated 1/3 of Athabasca County is Crown Land (See Map 4). Forestry companies acquire interests in Crown Land through Forest Management Agreements, while rights to surface and subsurface resources are assigned through Crown dispositions. In addition, Alberta Environment and Parks issues surface leases to individuals for residential, commercial and recreational purposes. The County will respond to Crown referrals for forestry and resource development projects and to lease application referrals based on the relevant components of the MDP and LUB and related County policies. Development proposals on Crown Land leases, unless related to a provincially- approved project, require County development approval; any such development applications shall be subject to the relevant provisions of the Municipal Development Plan and Land Use Bylaw and any other applicable statutory plan.
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14.6.2 Resource When the County receives a resource development application Development or other provincial referral related to land use planning and Applications development, the County will, prior to submitting its recommendation, provide relevant information to potentially impacted County residents and interests and, if appropriate, seek input from those residents and interests.
14.6.3 Co-operation The County’s co-operation with Alberta Transportation is with Alberta addressed in Section 12. Transportation
14.6.4 Upper The Land Use Secretariat will be initiating the preparation of Athabasca the Upper Athabasca Regional Plan in the upcoming years. Regional Plan Athabasca County is a municipality within the Plan Area and will play an active role in the plan’s preparation.
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PARTPART IV IV — — IMPLEMENTATION IMPLEMENTATION
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15.0 Implementation
15.1 Background Athabasca County Municipal Development Plan (MDP): 2016, adopted by County Council in the summer of 2016, guides municipal land use planning strategies, subdivision and development decisions, and the preparation of area structure plans. The County’s Vision Statement and planning objectives, reflected in Map 2 – Land Use Policy Areas, conceptually illustrates the priority land uses and the desired future. The MDP proposes a series of planning initiatives for the County to undertake over time. The County Land Use Bylaw which establishes a series of land use districts and regulates the issuance of development permits for the permitted and discretionary uses set out for each district, implements the development policies established in the Municipal Development Plan. 15.2 Objectives • Implement the objectives and policies of the MDP to guide decision-making regarding land use, subdivision and development and investment in infrastructure. • Establish a framework and timetable for the County’s long term planning initiatives.
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15.3 County Implementation Policies
15.3.1 Authority of the This Plan has been prepared consistent with Sections 632 and Plan 636 of the Municipal Government Act and adopted by Athabasca County Council as the Athabasca County Municipal Development Plan 2016 consistent with Section 692 of the Municipal Government Act. 15.3.2 Amendment to County Council may amend the Municipal Development Plan MDP as required from time to time consistent with the relevant provisions of the Municipal Government Act. Prior to the approval of an amendment an evaluation of the impact the proposed amendment on the goals, objectives and policies of the Plan shall be undertaken; the following information shall be submitted and reviewed: a. If requested by a resident or land owner or local organization a formal amendment request in writing shall be submitted to Council with the appropriate fee; b. If requested by County administration or Municipal Planning Commission, an administration report shall be prepared; c. The request shall include information about how the proposed amendment contributes to the vision, goals, objectives and policies of the Plan; d. During deliberation on the proposed amendment, Council may refer the request to such agencies as it considers necessary for comment; and e. Council may request additional information as it deems necessary to reach a decision on the proposed amendment. Council may proceed to amend the Plan through the bylaw approval/adoption process. 15.3.3 Land Use Bylaw The County Land Use Bylaw (LUB) is the primary MDP implementation tool. Amendments to the LUB shall be consistent with the objectives and policies of the MDP. The subdivision of lands within the County shall be in accordance with MDP policies. 15.3.4 Public Athabasca County values the contributions of County residents Participation to the land use planning and decision-making process. The County is committed to providing residents with the up-to- date information needed to constructively participate in County land use planning. The County will encourage resident participation by: a. Publishing MPC agendas and decisions on the County website monthly;
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b. Placing notices of subdivision application decisions and discretionary use development permit decisions on the County website and mailing the notices to adjacent property owners in a timely fashion; c. Notifying potentially impacted residents to upcoming major land use planning and development issues through the County website and by mail where appropriate; d. Developing participation programs relating to the preparation of area structure plans, detailed planning studies, and major development proposals in collaboration with development proponents.
15.3.5 Action Plans - The MDP establishes a framework for future planning actions Planning that the County intends to undertake in pursuit of the MDP’s Initiatives goals. The following are the planning initiatives that the County plans to undertake and the target start-up dates: a. Establish a system for the collection and regular evaluation of key data to monitor trends by December 2016. (See 15.3.8) b. Initiate the preparation of a Riparian Matrix Setback Model by mid-2017. (See 9.3.2) c. Initiate a feasibility study related to the extension of the ARWSC to Rochester by December 2017. (See 6.3.4) d. Initiate the evaluation of potential new approaches to agricultural land conservation by December 2017. (See 4.3.15) e. Initiate an update of the Town/County Intermunicipal Development Plan by mid- 2018. (See 14.3.3) f. Review the need to prepare a Boyle Intermunicipal Development Plan by mid-2018. (See 14.3.4) g. Initiate the preparation of area structure plans for the Hamlets of Colinton and Rochester by December 2018. (See 6.3.2) h. Evaluate the need to prepare a comprehensive wetlands inventory and conservation policy; seek funding and partnerships – no target date - progress to be reviewed in 2018. (See 9.3.17) i. Initiate the preparation/update of a Master Transportation Plan – no target date – progress to be reviewed in 2018. (See 12.3.8) j. Initiate a review of the Grassland and Wandering River Area Structure Plans by December 2019. (See 6.3.2) k. Initiate a feasibility study for the extension of the ARWSC to each of the Stable Hamlets by December 2020. (See 6.3.10) l. Initiate a feasibility study for the extension of the Aspen ARWSC to Baptiste Lake communities by December 2020. (See 14.4.3) 109 of 110
m. Pursue potential partnerships and funding arrangements for the completion of comprehensive lake studies for the 5 designated Major Lakes (Baptiste, Island, Skeleton, North Buck, and Amisk); the target is to complete the 5 studies between 2016 and 2024. (See 8.3.12) n. Explore the need for a joint use agreement with school authorities – no target date set. (See 10.3.4) o. Designate a suitable area in the vicinity of the Town of Athabasca for the establishment of a multi—lot industrial park by mid 2020. (See 7.3.12) 15.3.6 Periodic Review The MDP is intended to be utilized by County Council when acting as the Subdivision and Development Authority, the Municipal Planning Commission, the Development Authority, the Subdivision Authority and Administration on a regular basis. It is also utilized by the Subdivision and Development Appeal Board and the Municipal Government Board and various provincial departments and agencies. The plan should therefore be regularly monitored, reviewed and revised to ensure its vision and objectives are being met and its policies are relevant. Rapidly changing economic, social, environmental and technological contexts make it necessary to review the MDP every 10 years or sooner if economic and demographic trends and conditions change.
15.3.7 Monitoring Plan In order to monitor how the Plan aligns with achieving the Success Vision and shapes planning and development decisions, the County may establish a system of indicators to assess its effectiveness for managing growth and budget priorities. To monitor Plan success a commitment to collecting information and baseline data including development application decisions, subdivision application decisions, municipal servicing expenditures, municipal revenues associated with subdivision and development, rates of agricultural land conversion, watershed health and land use mix is required.
15.3.8 Aligning Other The success of the MDP land use and development policies Corporate Plans depend on a cohesive and strategic decision-making and Capital framework. Council will have regard to the MDP Vision, Expenditures Principles, Objectives, and Policies when reviewing other corporate plans and priorities.
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