Tri-Council Regional Growth Plan – Background Report Background Research and Findings As Well As Study Definition and Governance Context

Home , Athabasca County, Bonnyville, Lesser Slave Lake, Lesser Slave River, Marten Beach, Sawridge First Nation

Tri-Council Regional Growth Plan For Sawridge First Nation | M. D. of Lesser Slave River | Town of Slave Lake

Background Report

EIDOS Consultants Incorporated Suggested Citation: EIDOS Consultants Incorporated. 2015. Tri-Council Regional Growth Plan- for Sawridge First Nation, M.D. Lesser Slave River and Town of Slave Lake- Background Report. Municipal District of Lesser

Slave River No 124. Slave Lake, Alberta January, 2015

TABLE OF CONTENTS

1 INTRODUCTION ...... 1 1.1 Regional Growth Plan Documents ...... 2 1.2 Study Definition ...... 2 1.2.1 Study Goals ...... 2 1.2.2 Study Focus and Limitations ...... 3 1.2.3 Planning Horizon ...... 4 1.2.4 Study Area ...... 5 1.2.5 Mapping and Map Atlas ...... 6 1.2.6 Planning Process ...... 6 1.2.6.1 Consultation Plan ...... 7 1.3 Tri-Council Regional Governance Context ...... 9 1.3.1 Tri-Council Formation ...... 10 1.3.2 Tri-Council Partners ...... 11 1.3.2.1 Sawridge First Nation ...... 11 1.3.2.2 Municipal District of Lesser Slave River No. 124 ...... 11 1.3.2.3 Town of Slave Lake ...... 12 1.3.3 Regional Governance ...... 12 1.3.4 Tri-Council Vision ...... 14 1.3.5 Tri-Council Regional Growth Plan Goal ...... 14 2 ECONOMIC DEVELOPMENT & HOUSING ...... 17 2.1 Population Growth ...... 18 2.1.1 Current Demographic Characteristics ...... 18 2.1.1.1 Fertility Rates ...... 18 2.1.1.2 Age Distribution ...... 19 2.1.2 Historic Population Growth ...... 21 2.1.2.1 Non-Permanent Population ...... 22 2.1.3 Population Projections ...... 22 2.1.3.1 Non-Permanent Population ...... 25 2.2 Economic Development ...... 26 2.2.1 Vision and Mission Statements...... 26 2.2.2 Strategic Goals...... 26 2.2.3 Economic Baseline ...... 27 2.2.3.1 Economic Profile ...... 27 2.2.3.2 Aboriginal Population ...... 28 2.2.3.3 Labour Force ...... 29 2.2.3.4 Transportation Network ...... 34 2.2.4 Competitive Comparison ...... 37 2.2.4.1 Household Income ...... 38 2.2.4.2 Serviced Industrial Land ...... 38 2.2.4.3 Off-Site Levies ...... 39 2.2.4.4 House Prices ...... 39 2.2.4.5 Population Growth ...... 41

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2.2.4.6 Maximum Wait Time for Development Permits ...... 41 2.2.4.7 Average Retail Lease Costs ...... 41 2.2.4.8 Municipal Fiscal Capacity ...... 42 2.2.4.9 Conclusions ...... 45 2.2.5 Business and Industry ...... 46 2.2.5.1 Primary Trade Area ...... 52 2.2.5.2 Secondary Trade Area...... 53 2.2.5.3 Total Trade Area ...... 53 2.2.5.4 Tourism ...... 54 2.2.6 Employment Projections...... 56 2.2.7 Non-Residential Land Requirements...... 59 2.2.8 Economic Strategies and Policies ...... 62 2.2.8.1 Promotion of Highway 88 as Alternative Route to the Peace Oil Sands ...... 62 2.2.8.2 Staging of Servicing Requirements ...... 62 2.2.8.3 Off-Site Levies and the Front Ending of Infrastructure ...... 62 2.2.8.4 Market to Aboriginal Population ...... 63 2.2.8.5 Use of Events to Promote Tourism ...... 63 2.3 Housing ...... 64 2.3.1 Background ...... 64 2.3.1.1 Existing Stock ...... 64 2.3.1.2 Housing Market...... 66 2.3.1.3 Developer and Builder Market ...... 70 2.3.1.4 Effects of the Fire on the Housing Market ...... 71 2.3.1.5 Affordability ...... 75 2.3.1.6 Supply / Demand Situation ...... 79 2.3.1.7 Inter-Relation Between Housing and Other Factors ...... 84 2.3.1.8 Outlook ...... 84 2.3.1.9 Key Considerations Informing Housing Strategies / Policies ...... 88 2.3.2 Housing Strategies...... 89 2.3.2.1 Addressing Remaining Short Term Fire Effects ...... 89 2.3.2.2 Increase the Supply of Rental Housing ...... 89 2.3.2.3 Ensure Sufficient Supply of Developable Land ...... 90 2.3.2.4 Continue to Encourage Increased Housing Density and Affordability ...... 91 2.3.2.5 Ensure Continuation of Appropriate Rural Housing Options ...... 93

3 ENVIRONMENTAL MANAGEMENT ...... 95 3.1 Environmental Context ...... 97

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3.1.1 Natural Region Context ...... 97 3.1.2 Significant Environmental Resources and Protected Areas ...... 98 3.1.2.1 Environmentally Significant Areas (ESA) ...... 98 3.1.2.2 Wetlands ...... 98 3.1.2.3 Parks and Protected Areas ...... 99 3.1.2.4 Critical Wildlife Habitat ...... 99 3.1.2.5 Rare and Endangered Species ...... 99 3.1.2.6 Local and Traditional Knowledge ...... 99 3.1.3 Watershed Context ...... 100 3.2 Environmental Knowledge and Mapping ...... 101 3.2.1.1 Publically Available Spatial Environmental Data and Tools ...... 102 3.2.1.1 RGP Study Generated Environmental Data ...... 104 3.2.1.2 Recommended Strategies ...... 105 3.3 Regional Land Stewardship Planning...... 105 3.3.1.1 Lesser Slave Watershed Management ...... 106 3.3.1.2 Land Stewardship and the Land Use Framework ...... 107 3.4 Environmental Risk Mitigation ...... 109 3.4.1.1 Wildfire and FireSmart ...... 109 3.4.1.2 Flood Risk Mitigation ...... 111 3.4.1.3 Environmental Contaminants and Hazardous Substances ...... 113

4 MANAGING GROWTH ...... 115 4.1 Planning Influences ...... 116 4.1.1 Provincial & Regional Planning Initiatives ...... 116 4.1.1.1 Land Use Framework Context...... 116 4.1.1.2 Lesser Slave Lake Watershed ...... 116 4.1.1.3 Town / M.D. 124 Intermunicipal Development Plan ...... 117 4.1.1.4 Lesser Slave Lake Indian Regional Council ...... 117 4.1.2 Local Community and Municipal Planning ...... 117 4.1.2.1 Sawridge Fist Nation – Community Development Plan ...... 118 4.1.2.2 M.D. 124 Lesser Slave River - MDP ...... 118 4.1.2.3 Town of Slave Lake - MDP ...... 119 4.1.2.4 Joint ASP Plans ...... 120 4.1.3 Land Use and Zoning Bylaws ...... 121 4.1.3.1 Sawridge First Nation ...... 121 4.1.3.2 Municipal District of Lesser Slave River No. 124 ..... 121 4.1.3.3 Town of Slave Lake ...... 121 4.2 Infrastructure and Transportation Systems ...... 122 4.2.1 Infrastructure Availability and Future Plans ...... 122

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4.2.1.1 Town of Slave Lake ...... 122 4.2.1.2 Municipal District of Lesser Slave River ...... 124 4.2.2 Transportation ...... 125 4.2.2.1 Provincial Highways ...... 125 4.2.2.2 Municipal District of Lesser Slave River No. 124 ..... 126 4.2.2.3 Town of Slave Lake ...... 126 4.2.2.4 Sawridge First Nation ...... 127 4.3 Educational, Community and Protective Services ...... 127 4.3.1 Education Facilities ...... 127 4.3.2 Recreation and Parks ...... 129 4.3.3 Health and Social Wellness Services ...... 132 4.3.4 Protective and Disaster Services ...... 133 4.4 Crown Land Ownership ...... 134 4.5 Land Supply and Demand ...... 134 4.5.1 Short to Medium Term...... 134 4.5.2 Long Term Demand...... 136 4.6 General Regional Land Use Strategies ...... 136 4.7 Development Opportunity Assessments ...... 138 4.7.1 Sawridge First Nation ...... 138 4.7.2 MD and Town Infill Opportunities – Existing Approved Area Structure Plans ...... 140 4.7.2.1 South Shore Hamlets – M.D. 124 ...... 140 4.7.2.2 South Expansion Area – Town of Slave Lake ...... 142 4.7.2.3 Poplar Lane –M.D...... 145 4.7.2.4 Mitsue Heavy Industrial Park – M.D. 124 ...... 146 4.7.2.5 Waterfront ASP – M.D. / Town ...... 148 4.7.2.6 Marten Beach ASP – M.D. 124 ...... 150 4.7.3 Town of Slave Lake ...... 153 4.7.4 New Lands for Long Term Regional Development ...... 153 4.7.4.1 South Shore Expansion - MD ...... 153 4.7.4.2 Sawridge Creek South Residential - Town Urban Reserve ...... 154 4.7.4.3 Flat Top Industrial Park – Town & M.D...... 154 4.7.4.4 Eating Creek South CR/Industrial –M.D...... 154 4.7.4.5 Marten River Gateway Industrial Park –M.D...... 155 4.8 Regional Land Use Plan ...... 155 4.8.1 Development in Existing Approved Area Structure Plans ...... 156 4.8.2 New Development in Current Crown Held Green Zone Lands ...... 156 4.9 Intermunicipal Development Plan Boundaries ...... 156 REFERENCES ...... 159 GLOSSARY ...... 161

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LIST OF FIGURES

Figure 1.1 RGP Study Boundaries ...... 6 Figure 1.2 Planning Process ...... 7 Figure 1.3 Governance Protocol Diagram ...... 14 Figure 2.1 Regional and Provincial Fertility Rates ...... 19 Figure 2.2 2011 Town of Slave Lake Population Distribution ...... 20 Figure 2.3 2011 M.D. 124 Population Distribution ...... 20 Figure 2.4 2011 Aggregate Tri-Council Population Distribution ...... 21 Figure 2.5 Town of Slave Lake Population Pyramid 2036 ...... 24 Figure 2.6 M.D. 124 Population Pyramid 2036 ...... 24 Figure 2.7 Tri-Council Regional Population Pyramid 2036...... 25 Figure 2.8 Employment by Major Industry (2006) ...... 31 Figure 2.9 Employment by Major Occupation ...... 33 Figure 2.10 Benchmark Indicators Graph #1 ...... 37 Figure 2.11 Benchmark Indicators Graph #2 ...... 40 Figure 2.12 North American OSB Usage ...... 48 Figure 2.13 United States Single Family Housing Starts ...... 49 Figure 2.14 World Oil Reserves - 2013 ...... 50 Figure 2.15 Production Forecast in the M.D. of Opportunity ...... 51 Figure 2.16 Slave Lake Region Primary and Secondary Trade Areas ...... 52 Figure 2.17 Projected Annual Change in GDP ...... 57 Figure 2.18 Employment Projection by Sector: Slave Lake Region 2013 to 2036 ...... 58 Figure 2.19 House Sales Price Trend – Slave Lake and Comparators ...... 67 Figure 2.20 Apartment Rental Rate Trends – Slave Lake and Comparators ...... 68 Figure 2.21 Apartment Vacancy Rate Trends – Slave Lake and Comparators ...... 69 Figure 2.22 Housing Affordability – By Community, Family and Housing Type ...... 78 Figure 3.1 Lesser Slave Watershed ...... 101 Figure 3.2 Sawridge Creek Flood Hazard Map ...... 112 Figure 4.1 Sawridge First Nation – IR 150H and IR 150G ...... 138 Figure 4.2 South Shore Area Structure Plan ...... 140 Figure 4.3 South Expansion ASP – Future Concept ...... 143 Figure 4.4 Poplar Lane – Land Use Plan ...... 145 Figure 4.5 Poplar Lane Flood Plain Assessment ...... 146 Figure 4.6 Mitsue Industrial ...... 147 Figure 4.7 Waterfront Area Structure Plan ...... 148 Figure 4.8 Flood Plain Map from Waterfront ASP ...... 149

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Figure 4.9 Marten Beach ASP ...... 151 Figure 4.10 Intermunicipal Development Plan Referral Area ...... 157

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LIST OF MAPS**

Map 1.1 Study Area ...... 6 Map 2.1 Regional Context ...... 26 Map 3.1 Environmental Context ...... 97 Map 3.2 Ortho Photo ...... 97 Map 3.3 Terrain Assessment – Assineau ...... 105 Map 3.4 Terrain Assessment – Canyon Creek ...... 105 Map 3.5 Terrain Assessment – Wagner ...... 105 Map 3.6 Terrain Assessment –Slave Lake North ...... 105 Map 3.7 Terrain Assessment – Slave Lake South ...... 105 Map 3.8 Terrain Assessment – Lesser Slave River ...... 105 Map 3.9 Terrain Assessment – Mitsue ...... 105 Map 3.10 Terrain Assessment – Marten River ...... 105 Map 4.1 Land Use - Existing ...... 121 Map 4.2 Municipal Infrastructure – West Sheet ...... 122 Map 4.3 Municipal Infrastructure – East Sheet ...... 122 Map 4.4 Regional Land Use Plan - West ...... 156 Map 4.5 Regional Land Use Plan - East ...... 156 Map 4.6 Intermunicipal Development Plan ...... 156 ** Found in the Companion Document – Map Atlas Page number refers to location of reference to Map

LIST OF TABLES

Table 1—a Report Organization for Regional Growth Plan – Background Report ...... 2 Table 1—b Relationship between scales, topics, boundaries and graphics ...... 5 Table 2—a Historic Population Summary ...... 22 Table 2—b Tri-Council Regional Population Projection Summary ...... 23 Table 2—c Medium Scenario Population Projection Summary ...... 23 Table 2—d Median Age Slave Lake Region ...... 28 Table 2—e Growth by Demographic Segment: 2001 to 2006 ...... 29 Table 2—f Labour Force Activity ...... 30 Table 2—g Educational Attainment ...... 34 Table 2—h Traffic Volume Changes ...... 36 Table 2—i Competitive Benchmarks ...... 44 Table 2—j Slave Lake Region Labour Profile ...... 47

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Table 2—k Slave Lake Region Forest Management Areas ...... 48 Table 2—l Allocation of Employment Projections ...... 60 Table 2—m Floor Area Requirements by Type of Business ...... 60 Table 2—n Floor Area Ratios for New Non-Residential Development ...... 60 Table 2—o Projected Land Requirements (cumulative acres) for Non- Residential Developments...... 61 Table 2—p Tri-Council Region’s Housing Stock, by Type ...... 65 Table 2—q Housing Stock – Region and Comparator Communities ...... 65 Table 2—r Lot and House Development Activity and Costs – Slave Lake and Comparator Communities ...... 71 Table 2—s Fire Reconstruction – Residential Backlog ...... 73 Table 2—t Change in Housing Costs – Pre/Post Fire ...... 74 Table 2—u Housing Ownership Affordability ...... 76 Table 2—v Rental Housing Affordability – Slave Lake ...... 76 Table 2—w Slave Lake Household Income Levels ...... 80 Table 2—x Slave Lake - Current Housing Needs by Tenure and Family Type ...... 81 Table 2—y Unmet Demand by Degree of Need ...... 83 Table 2—z Housing Need Outlook by Growth Scenario – Slave Lake ...... 86 Table 2—aa Housing Need Outlook by Growth Scenario – MD Lesser Slave River ...... 87 Table 3—a Natural Subregion Characteristics ...... 97 Table 3—b Environmentally Significant Areas ...... 98 Table 3—c Selected Public Agency Geospatial Data Portals and Collections ...... 102 Table 3—d Selected Public Agency Online Application Tools ...... 103 Table 4—a Statutory and Community Development Plans ...... 117 Table 4—b Educational Facilities ...... 127 Table 4—c Community Facilities and Parks ...... 130 Table 4—d Residential Land Supply ...... 135 Table 4—e Land Use Role Differentiation ...... 137

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ACKNOWLEDEMENTS

Tri-Council Joint Steering Committee Kim Dyke, Slave Lake Regional Tri-Council, Regional Economic Development Officer Laurie Skrynyk, Town of Slave Lake, Director of Planning & Development Vanessa Asselin, Development Officer, Town of Slave Lake Russ Jassman, Municipal District of Lesser Slave River No. 124, Director of Rural Services Tony Signorini, Capital Projects Director, Regional Recovery Coordination Group Jeremy Schiff, Team Lead, Municipal Governance, Municipal Affairs

Tri-Council Secretariat Allan Winarski, Chief Administrative Officer, Municipal District of Lesser Slave River No. 124, Audrey DeWit, Town of Slave Lake, Recovery Manager Gordon Lundy, Town of Slave Lake, Recovery Manager Brian Vance, Chief Administrative Officer, Town of Slave Lake Michael McKinney, Executive Director, Sawridge First Nation

Alberta Municipal Affairs- Regional Recovery Coordination Group Jeremy Schiff, Team Lead, Municipal Governance, Municipal Affairs Bill Symonds, Acting Executive Director, Strategic Planning, Municipal Affairs Bill Sutherland, Strategic Governance Advisor, RRCG, Municipal Affairs Tony Signorini, Capital Projects Director, RRCG, Municipal Affairs

Consultant Team EIDOS Consultants Incorporated Nichols Applied Management Prime Consultant Economic Development Robert (Bob) Gibbs, Principal Gerry Fardoe, Principal Heloisa Ceccato Mendes, Planner Pearce Shewchuk, Consultant Ross McTaggart, GIS Specialist Ian Gray, Consultant Claudette Kozak, CAD and Graphics

Barbara Sheehan, Landscape Architect Pedocan Land Evaluation Ltd. Land Assessment Parkland Community Services Ltd. Len Knapik, Soil Scientist Community Planning Leanne Erickson, Reclamation Chris Ulmer, Senior Planner Specialist

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Special Acknowledgements Workshop Participants Adam McArthur, Executive Director, Community Futures Ali Mouallem, Executive Director Lesser Slave Lake Economic Alliance Alisa Juneau, President, Slave Lake Chamber of Commerce Con Dermott, Alberta Forest Products Association Corinne Card, CAO, Lesser Slave Lake Regional Housing Authority Dave Gaskell, Legacy Development Inc Gordon Fergusson, Legacy Development Inc Jamie Coutts, Fire Chief Lesser Slave Regional Fire Services Joanne Kishner, Teatree Development Ltd. Slave Lake Kathy Barnhart, Consultant for the Lesser Slave Lake Regional Housing Authority Lindsay Pratt, Housing Advisor, Stakeholder Relations North, Municipal Affairs Loretta Bertol, Housing Advisor, Stakeholder Relations North, Municipal Affairs Meghan Payne, Executive Director, Lesser Slave Lake Watershed Council Michelle Keohane, Land Management Forester, AESRD Roger Borchert, Director of Operations, Town of Slave Lake Vanessa Asselin, Planning and Development Officer, Town of Slave Lake

Other Contributors Stew Walkinshaw, Registered Professional Forester, Montane Forest Management and Advisor to FRAT – FireSmart Regional Action Taskforce

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TRI-COUNCIL REGIONAL GROWTH PLAN DOCUMENTS

This Report is one of a set of three documents prepared for the Tri-Council Regional Growth Plan, including:

Tri-Council Regional Growth Plan –Policies and Agreements Policies and two agreements for an integrated regional growth plan.

Tri-Council Regional Growth Plan – Background Report Background research and findings as well as study definition and governance context. This document contains a project description with key descriptions, assumptions and acronyms and glossary definitions that are used throughout the three documents.

Tri-Council Regional Growth Plan – Map Atlas Map compilation for the Regional Growth Plan.

The following diagram describes the linkages between the three documents:

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A summary of cross references between documents is provided in the following table:

Table ES – a Document Cross References Agreements and Policies Background Report Map Atlas Agreements Policies 1 Introduction: Why Introduction: Study Map 1.1 Study Area Regional Growth Plan Collaborate, Principles Definition, Tri-Council Agreement Vision, Goals and Guiding Regional Governance Principles Context 2 Inter-Jurisdictional Introduction: 1.3 Tri– Collaboration: Background, Council Governance Context Goals, Policies and Objectives 3 Environmental 3 Environmental Map 3.1 Environmental Stewardship: Management: Context, Context Goals, Policies and Environmental Knowledge Map 3.2 Orthophoto Objectives and Mapping, Regional Land Maps 3.3 to 3.10 Terrain Stewardship Planning, Assessment – various sheets Environmental Risk With extended legend in the Mitigation Atlas text. 4 Social Responsibility: 2.1 Population Growth Goals, Policies and 2.3 Housing Objectives 4.3 Educational, Community and Protective Services 5 Economic Prosperity: 2 Economic Development 2.1 Regional Context Goals, Policies and and Housing: Objectives 2.1 Population Growth 2.2 Economic Development 6 Managing Growth 4 Managing Growth: Map 4.1 Regional Land Use Goals, Policies and 4.1 Planning Influences Map 4.2 and 4.3 Municipal Objectives 4.2 Infrastructure and Infrastructure – West & East Transportation Systems Map 4.4 and 4.5 Regional 4.4 Crown Land Ownership Land Use Plan West & East 4.6 Land Supply and Intermunicipal 7 Intermunicipal Planning Demand, Map 4.6 Intermunicipal Development Plan Policies related to land use 4.7 Development Opportunity Development Plan relations between the Town Assessments. and M.D. 4.8 Regional Land Use Plan 4.9 Tri Council Referral Boundaries Regional Growth Plan 8 Implementation Agreement Plan Implementation, Plan Evaluation and Renewal

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ACRONYMS

ACIMS Alberta Conservation Information Management System AESRD Alberta Environment and Sustainable Resource Development ASP Area Structure Plan ATRP Alberta Tourism Recreation and Parks CAO Chief Administrative Officer ENGO Environmental Non-Governmental Organization ESA Environmentally Significant Area GoA Government of Alberta IDP Intermunicipal Development Plan IJA Interjurisdictional Agreement LSLEA Lesser Slave Lake Economic Alliance LSLRHA Lesser Slave Lake Regional Housing Authority LSWC Lesser Slave Watershed Council MGA Municipal Government Act NGO Non-Governmental Organization UARP Upper Athabasca Regional Plan WPAC Watershed Public Advisory Council

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EXECUTIVE SUMMARY – BACKGROUND REPORT

Section 1 Introduction Study Definition The Regional Growth Plan (RGP) builds on and replaces an Intermunicipal Development Plan, approved in 2000. The RGP integrates several studies including:

 Economic Development and Housing  Environmental Management  Land Use and  Infrastructure and Municipal Services.

The primary study area is the Slave Lake Region including the fringe areas around the Town of Slave Lake. Aspects of the RGP Study address a large trading region and the Tri-Council region occupied by its three member jurisdictions.

Regional Governance Following the devastating 2011 wildfire, a council of local jurisdictions has emerged. The Lesser Slave Lake Tri-Council (Tri-Council) is comprised of three jurisdictions:

 Sawridge First Nation  Municipal District of Lesser Slave River No 124, and  Town of Slave Lake.

RGP Study Goal The Goal of the Tri-Council Regional Growth Plan is to better position the Region and its communities by fostering regional cooperation and collaborative strategies which produce balanced, integrated, sustainable and resilient growth.

Section 2 Economic Development and Housing Population Growth For the forecast period ending 2036, the regional population is expected to grow at a rate of between 0.27% -1.19%, taking the region from its present 10,070 population to an estimated 10,705 to 13,215 residents. The population growth is relatively stagnant. Factors related to the low growth rate include high out-migration of young adults prior to family formation,

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particularly in the M.D. Aboriginal population increases are an offsetting influence.

Economic Development Economic baseline research places the region relative to comparable communities:

 Labour force: high participation rate and lower educational attainment relative to the province.  Transportation: airport and rail to support industry; good highway connections with increasing volumes and with Slave Lake being on alternative long distance haul routes.  Economic Benchmarks: relative to comparative communities, many of the indices are median values.  Business and Industry: The region is stronger in resource based industries, construction, retail and education. Reopening of the Tolko Slave Lake OSB Mill after a 6 year closure will boost economic development. Expansion of InSitu Oilsands mining in the M.D. of Opportunity will create a potential opportunity for the Tri-Council region to capture service and support operations.  Trade Area: the primary trade area extends north to Wabasca: The secondary trade area extends beyond Fort Vermillion, with Highway 88 and Slave Lake being a preferred route to Edmonton.

Economic Projections  Employment in forecast period (2036): for all sectors is expected to increase by 13% (to 6435, up from 5675).  Non-Residential Land requirements for forecast period: 54-58 acres of Commercial, Light Industry and Business Parks.

Economic Strategies and Policies A series of economic development strategies are recommended based on the baseline and trend analysis:

 Promotion of Highway 88 as an alternate route to the Peace Oil Sands.  Staging of Servicing Requirements for land development.  Considerations for Off – Site Levies and Front ending of Infrastructure.  Market to Aboriginal Population.  Use of Events to Promote Tourism.

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Housing Projections In a medium-growth scenario, the housing demand in the Area within the next ten years could be:

 500 market and 30 market attainable housing units for ownership.  120 rental units, including 60 market, 40 market-attainable and 20 subsidized (social) housing units.  Two-thirds of the ownership housing and 100% of the rental housing is assumed to be in Slave Lake.

Housing Strategies A series of housing strategies are recommended based on the baseline and trend analysis:

 Address remaining short term fire effects.  Increase the supply of rental housing.  Ensure sufficient supply of developable land.  Continue to encourage increased housing density and affordability.  Ensure continuation of appropriate rural housing options.

Section 3 Environmental Management Environmental Setting The RGP Study area is a forested outlier of Rocky Mountain Foothills transitioning into Boreal Forest. Key regional features include:

 Presence of important natural areas and critical habitat.  Part of Lesser Slave Watershed with concerns over water quality and habitat biodiversity.

As part of Upper Athabasca Watershed Plan area the region will soon need to address a Regional Land Use Plan under the Alberta Land Stewardship Act. Similarly a Lesser Slave Watershed Management plan has been initiated under the auspices of the Lesser Slave Watershed Council. Partnering with regional agencies to protect sensitive lands and implement beneficial management practices to protect Lesser Slave Lake are recommended.

Environmental Knowledge and Mapping A significant improvement exists for publically available environmental data and tools to access data and analyse/prepare submissions. The RGP study provides new higher resolution data to improve planning and development in the region including orthophotos, contours and terrain analysis. Strategies are identified for better deployment of spatial data and tools to facilitate planning and development.

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Environmental Risk Mitigation – Wildfires and FireSmart The lessons-learned from 2011 Wildfire need to be maintained and implemented on a regional basis. Strategies identified include: establishing the region as a FireSmart Community, maintaining a regional inter-agency coordination group under Tri-Council direction, and implementing FireSmart principals and procedures at each stage of new development planning and approvals.

Environmental Risk Mitigation – Flood Risk Flood potential exists in various locations of the RPG study area and yet flood hazard mapping is very limited. Strategies identified include: prohibiting development unless full compliance with flood risk mitigation; partnering to produce more flood risk mapping in the region; and ensuring flood risk mapping as part of development submissions.

Environmental Risk Mitigation – Environmental Contaminants Hazardous materials, waste products need to be managed for healthy communities and the environment. Strategies identified include: maintaining setback from a variety of land use risks, establishing a precautionary setback from rail road based on risk assessment, and locating residential land uses upwind of industry.

Section 4 Managing Growth Factors Influencing Growth A number of factors have been identified which will shape future growth:

 Policy Planning: provincial regional and local plans will continue to effect the location and types of growth including Community Development Plans (Sawridge), Municipal Development Plans (MDP), Areas Structure Plans (ASP) and Intermunicipal Development Plans. Regional Planning processes will also affect development including a Watershed Management Plan and Upper Athabasca Regional Plan.  Crown Land Ownership: the supply of new land for settlement expansion must come from Crown Land Sources. Forward planning and engagement with provincial land managers is recommended for a desirable outcome.  Land Demand: requirements are outlined in Section 2. Long term (min 30 years) land supply requirements need to be identified spatially given that new land will come from Crown Lands.

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 Land Supply: Requirements in the forecast period can be generally accommodate in land reserves established in existing ASP’s. Some of the land reserves are highly constrained due to terrain limitations, resulting in lower yield and or additional development costs. The challenging landscape in the region means that close attention must be given to development limitations for individual parcels including: Geotechnical, Topographical, Poor Soils, Flood Risk, and Setbacks.

RGP Planning Strategies: A number of land use planning strategies were identified for the RGP including:

o Place priority on incremental growth in existing ASP’s within the planning Horizon of the study. o Get started on a new light industrial park on a collaborative Town/MD basis. o Differentiated roles in land use delivery. o Separate residential from heavy industry and keep residential upwind of heavy industrial. o Chose better land for future development while maintaining quality in existing areas. Most long term future development is expected to occur south of Highway 2. o Examine opportunities to collaborate among the three Tri- Council partners to deliver cost effective land for development.

Development Opportunity Assessment Sawridge First Nation Lands are reviewed with respect to the Terrain Mapping and known or potential flood conditions.

Infill opportunities in existing ASP’s identified the following:  Assineau: maintain as best agricultural land in the region.  South Shore Hamlets (Canyon Creek, Widewater and Wagner: Incremental growth and infill. Pay close attention to development limitations for specific parcels. Concerns include geotechnical instability, steep terrain, local flooding from creeks and poor saturated soils). Some long term development parcels have been identified south of Highway 2 on better land, some with limitations. Statutory setbacks of 800m from Highway 2 will have to be first addressed with Alberta Transportation.

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 Bayer Road Country Residential and Sawridge IR 150H: Extend shared water system. Some potential for housing expansion on IR on higher ground closer to Bayer Road. Site constraints include soil conditions and high water table-- especially going north toward the lake. Mooney creek has no flood hazard mapping which may pose a risk for existing and future housing on the Adjacent IR 150H.  South Expansion ASP – West Sector: continued development of planned neighborhood residential housing. Long term future expansion of urban neighborhoods to the southwest on better ground closer to Highway 2 (FireSmart) will enhance viability of initial phases. Commercial retail and highway development would be longer term considerations for lower poorer land along the highway.  South Expansion ASP – Center Sector: continued development of planned neighborhood residential housing. This sector has significant terrain challenges (topographic and geotechnical). It also has an old inactive land fill that needs additional work to allow development in the vicinity. This sector also has a very significant local natural area – The Sawridge Creek which needs to be cooperatively managed with AESRD and local stewards. The natural corridor can provide for back country access and trails of various descriptions, right from local homes in the area. Commercial retail and highway development would continue to infill along the highway.  South Expansion ASP – East Sector: A new start on a jointly managed, serviced light industrial park (Flat Top Industrial Park) is proposed with an access east of the MD office, across Highway 2 from the Visitor Centre. Utilities can be staged, but water supply can be coordinated with the water service extension into Poplar Lane. An overall feasibility study would be necessary to produce a conceptual design, with ownership considerations, viable initial stage and a cost and revenue sharing formula.  Poplar Lane: incremental infill of residential development, limited by highway setbacks, poorly drained soils and flood risk. A triangle of land on the west next to the Town Boundary could be considered for higher density dwellings to meet the need for young couples and families.  Mitsue Industrial: limited incremental infill and expansion, limited by poorly drained soils and O&G installations. If at some time in the future, a new industry were to locate in the area, Mitsue would be able to provide an economically viable site, given proximity to rail and highways and other industry/service partners and given that the scale of development could accommodate the incremental cost of overcoming adverse terrain conditions.

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 Waterfront ASP: Flood hazard assessment needs to be first addressed. Land uses and the ASP should be reassessed in relation to new provincial guidelines for development in flood plains.  Marten Beach: Flood hazard assessment and flood mitigation needs to be first addressed. Lands north of Marten Beach were evaluated for expansion. The soils become progressively more organic in the northward direction. The ice thrust beach ridge is sensitive and poses development risks and should be conserved. Some incremental expansion in the immediate area of the ASP may be considered, subject to detailed site assessment.  Town of Slave Lake: Within the Southwest ASP are a number of vacant lots that should be promoted for higher density.

New Land for Long Term Regional Development New land will be needed to accommodate new land use initiatives and reserves for long term urban and country residential development. Because these land are currently Crown owned and managed, significant lead time and due process is required for these lands to become available for development

 South Shore Expansion Lands: for country residential in the M.D.  Sawridge Creek South Residential: Town urban land reserve on a generally well drained or drainable plateau of land paralleling Highway 2, south west of Town  Flat Top Industrial Park: expansion of industrial lands south of Highway 2 to complete a joint M.D. / Town industrial development.  Eating Creek South CR/I: south of Highway 2 and west of Eating Creek accessed by an existing M.D. rural road is an area for a proposed large lot unserviced Country Residential/ Light industrial Subdivision. This location has some soil limitations which can be modified with drainage. There are also some oil and gas wells and collection lines that would have to be avoided. The initial subdivision could be as small as 80 acres or 8 lots.  Marten River Gateway Industrial Park: The lands along Highway 754, east of the intersection with Highway 88 have been identified by the M.D as an opportunity for light industry and by the Alberta Geological Survey as a significant regional granular deposit. The commercial value of this resource would need to be assessed. Land uses in the areas could be transitional or permanent if the resource has been extracted or evaluated to be not viable. Light industry, compatible with granular extraction is recommended.

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Regional Land Use Plan A regional land use plan (presented on Maps 4.4 and 4.5.) will guide decision making in the region for future development.

Intermunicipal Development Plan Area or IDP Area Changes are recommended to the 2000 IDP referral boundary as presented in Map 4.6:

 Furthest South Boundary: moved north by two sections because of the RPG FireSmart Strategy to locate future urban development on better land closer to Highway 2.  West boundary: unchanged.  North boundary: minor extension for development along Lesser Slave Lake shore..  East boundary near Highway 2: extended to the southeast by a half section to encompass future Flat Top Light Industrial Park and conversely reduced in the north east to exclude Sawridge FN.  An Inner boundary is created at approximatey 400m inside the Town Boundary, adjusted to a best fit in some locations.

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Canyon Creek Marina Photo Courtesy of the Lesser Slave Lake Economic Alliance

1 INTRODUCTION

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1.1 Regional Growth Plan Documents This background report is one of a set of four documents prepared for the Tri-Council Regional Growth Plan, including:

 Agreement Framework  Policy Plan  Background Report (current document)  Map Atlas

Table 1—a presents an overview of the Regional Growth Plan – Background Report with brief descriptions for each section.

Table 1—a Report Organization for Regional Growth Plan – Background Report Section Name Contents 1.0 Introduction Study description including purpose, study limitations, study area, and local jurisdictions and regional governance. 2.0 Economic Development and Description of economic context, population growth, current Housing issues, analysis and recommendations related to economic development and housing. 3.0 Environmental Management Description of environmental context; terrain analysis of RGP Study Area; assessment of environmental risks (flood, fire and contaminants) and recommendations for sustainable development and conservation practices. 4.0 Managing Growth Background analysis of planning influences, current land use, municipal services, land demand and supply analysis leading to a regional development framework and recommended practices. 5.0 Agreement Options Description and preliminary review of options to replace the 2000 Intermunicipal Development Plan.

1.2 Study Definition

1.2.1 Study Goals The study is intended to replace and expand upon an existing Intermunicipal Development Plan 2000 (IDP) between the Town of Slave Lake (Town) and Municipal District of Lesser Slave River No, 124 (M.D. 124). The replacement study is being entitled a Regional Growth Plan (RGP) because this study also includes:

 Lands outside IDP 2000 boundary (see Section 1.2.3).

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 A new jurisdiction and regional partnership including Sawridge First Nation (First Nation) and Lesser Slave Lake Region Tri-Council (Tri- Council).  Topics in addition to land use including regional economic development.

The goal of the RGP Study is to bring different planning initiatives together in an efficient and well integrated single document. The Regional Growth Plan comprises several components:

 Regional Economic, Housing and Industrial Development: including population growth projections, economic generators, with guidelines for regional economic development strategies and implications for, land demand).  Regional Environmental Management: analysis of terrain and environmental features which present risk to development or require conservation practices to maintain the health of regional natural systems such as Lesser Slave Lake and its tributary creeks.  Regional Land Use: assessment of land demand/supply, and subsequent policies and strategies for coordinated land development based on a regional cooperation model.  Infrastructure and Municipal Services: in concert with the regional land use analysis, identify policies for staging and management of related infrastructure and municipal services (fire police, ambulance, schools, community/recreation facilities and parks).

1.2.2 Study Focus and Limitations Focus on Collective Regional Matters The Regional Growth Plan focuses on issues of regional and interjurisdictional concerns rather than issues related to only one Tri-Council jurisdiction. The Regional Growth Plan is the result of a collective effort to promote strategic development initiatives that address common interests between the three parties involved in this plan. With respect to each jurisdiction, the Regional Growth Plan will not present a similar level of detail presented by a Municipal Development Plan (in Town’s and MD’s case) or a Community Development Plan (in the Sawridge First Nation case). For the individual jurisdictions, the plan provides information about growth demand and land supply to support jurisdictional aspirations to grow and develop, that are linked and compatible to the health of the region.

Focus on common interests of Tri-Council for collective decisions The Regional Growth Plan will focus on potential synergies between the three parties involved. Most importantly, the Regional Growth Plan provides Tri-Council with information to support collective decisions about future

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development in areas of common interest. By doing this, the Regional Growth Plan creates a strong basis to support long term collaboration between Tri-Council members, in order to promote the sustainable development of the region. Matters solely the interest of one jurisdiction but not the other two are typically not addressed in detail.

Focus on Slave Lake Region (RPG Study Area) The goal of the RGP Study is to replace the current Intermunicipal Development Plan (2000) which regulates land use in the M. D. fringe area surrounding the Town. The Town and its fringe area represent a strong interdependent set of relationships, which has been the focus of Tri-Council common interest and decision-making. Also from an economic perspective, Tri Council has common interests that extend out into the M.D. Where such common interests are identified, strategies and polices will be addressed in the RGP Study.

Recognition of Land Management Mandates by Provincial Agencies In addition to the Tri-Council Jurisdictions (M.D., Town and First Nation) other land managers have authority over significant parts of the M.D. and Town fringe areas including Alberta Environment and Sustainable Resource Development (AESRD) for crown land in the Green Zone and Alberta Tourism, Parks and Wildlife (ATRP) for provincial parks and protected areas. Foremost, the RGP represents the interests of Tri-Council Jurisdictions and to the extent possible also aligns with known Alberta Government policy. Consultation, coordination and joint action with provincial agencies is required to carry forward the RGP. Recommendations concerning regional economic development, regional land use, and regional environmental strategies are limited to lands for which Tri-Council jurisdictions have a mandate. In some instances, crown land has been identified for long term expansion requirements. These identified lands are a statement of desired outcome, in anticipation of due process and time on the part of the Province before such lands become available.

1.2.3 Planning Horizon The time horizon for the RGP Study is the year 2036, which generally corresponds to the MDP planning horizons for both the Town and M.D. All RGP population projections are set to this horizon. Because of the Study area setting within the provincial crown-owned Green Zone, some considerations for a long term (minimum 30 years) land supply are also addressed.

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1.2.4 Study Area Geographically, the plan addresses four different scales:

 Macro Region: economic region of trade and influence from the Slave Lake core area and the regional context from an environmental and economic perspective.  Tri-Council Region: lands occupied by Tri-Council jurisdictions.  Regional Growth Plan (RGP) Area: Town of Slave Lake plus surrounding lands, including Sawridge First Nation, M.D. South Shore hamlets, Poplar Lane, Marten Beach and Mitsue Industrial Complex.  Intermunicipal Development Plan (IDP) Area: zone straddling the Town Boundary to coordiante land use planning and develoment between the Town and Municipal District

Different topics are addressed at each of these three scales or physical boundaries. Table 1—b shows the relationship between the Regional Growth Plan scales, topics, boundaries and related graphics (Maps and Figures).

Table 1—b Relationship between scales, topics, boundaries and graphics Scale Topic Related Related Graphics Boundary (Maps and Figures) Macro Region Economic Context Trading area Figure 2.16 Trading Areas Map 2.1 Regional Context Environmental Lesser Slave Map 3.1 Environmental Context Context Watershed Tri-Council Broad Economic M.D. 124 Map 2.1 Regional Context Region Development Policy Regional Integrated Town, Sawridge FN Map 1.1 Study Area Growth Plan Economic Dev.& and Fringe Maps 3.3 Terrain Analysis RGP Area Regional Land Communities to 3.11 Use Plan Intermunicipal Land Use and Prescribed lands Map 4.6 Intermunicipal Development Development inside and outside Development Plan Plan (IDP) Area the Town Boundary

Figure 1.1 illustrates the notional relationship between the Regional Growth Plan boundary, Greater Tri-Council Region and Macro Region.

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Figure 1.1 RGP Study Boundaries Map 1.1 Study Area

1.2.5 Mapping and Map Atlas A set of maps are presented in the companion document entitled Tri- Council Regional Growth Plan – Map Atlas (Map Atlas). The set of maps are for the most part generated from “shapefiles” from a Geographic Information System (GIS) which relies on software to process and display geospatial data. Both the Town and MD currently have deployed GIS systems for various purposes including municipal property assessments; permit tracking, infrastructure management and planning. The Map Atlas draws on data from a number of sources:

 Data (shapefiles) with permissions from the Town and MD.  Published Public Data Sources under an open government licence for a variety of information such as environmental data, parks and protected areas,  GoA base features, LIDAR, and orthophotos which have been made available to the project under a single user licence managed by the Municipal Affairs Regional Recovery Coordination Group.  Some displayed data has been generated by the Consultant from supplied data sources including hillshade background display (Map 1.1) contour data of Terrain Assessment maps.

1.2.6 Planning Process The planning process for this plan was composed of four phases, which are presented in Figure 1.2 Planning Process. Stakeholder and public

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workshops were conducted in September 2013 and marked the transition between Phase 1 – Project Initiation and Studies and Phase 2 – Vision and Options.

Figure 1.2 Planning Process

1.2.6.1 Consultation Plan The consultation plan for this project was designed to involve people at various stages of the work plan, according to their interest in the project. Key person interviews were conducted in August 2013, workshops (with stakeholders and general public) in September 2013, and an Open House in November 2013. In each engagement, an exit survey was provided to participants to record their views and perspectives. A consultation summary report documented the process and outcomes. More details about the consultation activities can be found below.

Key person interviews (August 2013): Interviews with key decision-makers (Tri-Council representatives and community leaders) were undertaken to assess regional priorities and opportunities.

Topical Workshops / Discussions (September 2013): The following 5 topical workshops were conducted with stakeholders:

 Infrastructure and Fire Smart Strategies – September 9th, 2013:

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o This topical workshop focused on current infrastructure systems and long term plans. Topics discussed included roads, water, sewer, drainage, and power. This workshop also addressed Fire Smart principles and concerns related to urban expansion.

 Regional Municipal Services and Facilities – September 9th, 2013 o This topical workshop focused on identifying future needs for the provision of regional municipal services such as police, public works, fire, schools and community services.

 Accommodating Growth – September 10th, 2013 o This topical workshop focused on identifying demands and options to promote future balanced growth between various land use designations such as industrial, residential, and commercial areas.

 Economic Development – September 10th, 2013 o This topical workshop focused on identifying existing and potential opportunities that should be considered to support the region`s economic development.

 Environment and Ecological Infrastructure – September 9th, 2013 o This topical workshop focused on reviewing mapped environmentally significant areas and protected areas, and identifying any additional areas that should be included on a proposed natural development limitations map.

Public Workshop (September 2013): A public workshop was conducted on the evening of September 9th, 2013 at the Elks Hall. The general public was invited to the Public Workshop through a newspaper ad. The discussion was structured around the same themes used for the topic works shops listed above. Participants were asked to describe the main issues that should be addressed by the plan, as well as indicate priorities.

Regional Visioning and Strategies Workshop (September 2013): After the thematic workshops listed above, one last workshop / discussion was held with all stakeholders involved in previous activities and Joint Committee members to share the results from separate discussions with the whole group. The Regional Visioning and Strategies workshop was conducted on September 18th, 2013. It built on previous discussions and focused on possible development sites and strategies.

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Open House (November 13, 2014): An opportunity for the general public to be informed about the draft plan was provided through an open house, where the main aspects of the plan were presented. The general public was invited to the Open House through a newspaper advertisement and all particiapnts of the workshops were emailed and invitation.

Joint Committee and Tri-Council: As a decision making body, representing three jurisdictions, Tri-Council has been invited to provide input throughout the planning process. The engagement program has provided Tri-Council with choices and opportunities for input into each strategic topic of the plan. Periodical meetings with the Joint Committee also provided opportunity for the three jurisdictions to provide input into the different phases of the plan. The final plan has been built around the collective inputs of Tri-Council, Joint Committee and stakeholder groups and the general public.

1.3 Tri-Council Regional Governance Context In May 2011, Wildfires swept through parts of the east end of Lesser Slave Lake, affecting a number of jurisdictions including Sawridge First Nation, the Municipal District of Lesser Slave River No. 124 and the Town of Slave Lake. The Province of Alberta responded to the urgent requirements with a Wildfire Recovery Program, which included emergency funds and support resources.

Photo: 1 May 2011 Wildfire devastates buildings in the Tri-Council Region Photo Courtesy: Town of Slave Lake

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The Wildfire Recovery Program was short-term in nature and initially directed at stabilization and recovery. The program also included a number of components to assist the region in addressing long-term recovery (Sutherland, 2012).

1.3.1 Tri-Council Formation Soon after the May 2011 wildfires, a meeting was convened of the elected officials of the three affected jurisdictions:

 Sawridge First Nation  Municipal District of Lesser Slave River, No. 124  Town of Slave Lake

The Lesser Slave Lake Region Tri-Council (“Tri-Council”) now meets monthly and consists of elected representatives from each regional jurisdiction. A consensus model is used in decision-making. The strategic objectives of Tri- Council are set out in the document entitled Lesser Slave Lake Region Tri- Council – Strategic Guidance (Sutherland, 2012). Strategic Goals are identified as (ibid):

 A good, respectful, trusting and productive inter-jurisdictional relationship and effective collaborative governance between the First Nation, Town and MD.  Ongoing and effective Tri-Council Governance.  Regional Strategic Planning and Annual Regional Goal Setting.  A Regional Emergency Preparedness and Response Plan that includes jurisdictional clarification and communication, information- sharing protocols and input from GOA Departments/Agencies.  A defined and sustainable Regional Fire Smart Model.  A Regional Land Use Plan that also serves as a “sub-regional plan” under the Province’s Land-Use Framework that includes input from GOA Departments/Agencies.  A Regional Economic Development Strategy and Plan that recognizes that Economic Development is not an end in itself but rather a means to an end, the fulfillment of the Tri-Council’s Strategic Intent.  A successful Family Care Centre (FCC) Model.  A Transition Plan to move the Region from recovery to normalcy.  Implementation of Tri-Council’s Priorities for the Lesser Slave Lake Regional Wildfire Recovery Plan as confirmed by the results of Tri- Council’s 28 November, 2012 “Way Forward” Workshop.

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Administratively, a Secretariat has been formed of the chief administrative officials of each jurisdiction, including Sawridge First Nation Executive Director, Slave Lake CAO and M.D. 124 CAO.

1.3.2 Tri-Council Partners A unique feature of Tri-Council is its jurisdictional make-up. This Tri-Council brings together the diverse perspectives of a First Nation community, rural municipal district, and urbanized town. These Tri-Council partners come from different historical and cultural perspectives. Yet they recognize that for a successful region, each share and have a stake in regional prosperity and community life. Working cooperatively to strengthen the region will bring common benefits.

1.3.2.1 Sawridge First Nation Sawridge First Nation (“Sawridge or First Nation”) is a progressive community of Cree origin, history and culture. In 1899, Sawridge was one of the original signatories of Treaty 8, between the Government of Canada and the aboriginal peoples of northern Alberta and parts of British Columbia, Saskatchewan and the Northwest Territories. Today, Sawridge is a social, economic and cultural force within the region.

Sawridge has a number of discrete reserve lands (IR 150H and IR 150G) surrounding the town; however, schools, day care and recreational facilities are regionally integrated. For some locations, Sawridge has negotiated water and sewer services from the Town or M.D. Approximately 30-35 household units exist on reserve.

In terms of governance, Sawridge has its own Constitution. An Assembly of Sawridge members meets regularly. An elected chief and council represent the First Nation. Important land-related issues are taken back to the Assembly. Administratively, an Executive Director administers the affairs of Sawridge First Nation and represents Sawridge at the Tri-Council Secretariat.

1.3.2.2 Municipal District of Lesser Slave River No. 124 The Municipal District of Lesser Slave River No. 124 (“M.D. 124”) encompasses a large (10,000 + square kilometers) geographic region stretching from the eastern shores of Lesser Slave Lake, eastward across the Athabasca River and southward to the boundary of Westlock County. Most of its population of 2930 residents (2011 Canada Census) is centered near Lesser Slave Lake in hamlets including Canyon Creek, Widewater, Wagner, Poplar Lane and Marten Beach. Other hamlets in the east of the Athabasca River include Smith, Hondo, Chisholm and Flatbush.

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Economically, the main primary industry is forestry and the related production of pulp and construction products such as plywood, OSL and OSB. The oil and gas sector is also very important. A large percentage of the M.D. 124 is crown land, managed by the Province of Alberta. Its slogan “Rugged and Real” provides some insight into the surrounding backcountry setting that provides economic wealth and attractive lifestyle opportunities for local residents.

The 2011 fire destroyed 56 homes and properties in Poplar Lane and the Lesser Slave Lake South Shore (“South Shore”) communities of Widewater and Canyon Creek (Flat Top Complex Wildfire Review Committee. May, 2012).

M.D. 124 operates under the Municipal Government Act and other provincial legislation. It has an elected council (6 council members plus a reeve). Managing the administration is a Chief Administrative Officer, who reports to Council and is also a member of the Tri-Council Secretariat.

1.3.2.3 Town of Slave Lake The Town of Slave Lake (“Town”) was incorporated in 1965 and currently has a population of 6,782 (2011 Canada Census). The Town is located on the eastern shore of Lesser Slave Lake, between the highlands of Swan Hills to the southwest and Pelican Mountain to the northeast. Until flooded-out in the 1930’s, the community was called Sawridge and located 5 kilometers to the north on the shores of the Lesser Slave River. Slave Lake is a regional service center for a large trading region, featuring an airport, hospital, college, major commercial and industrial operations. Local and regional residents have access to a variety of community amenities and services. The Town manages regional-scale water supply and wastewater systems.

Some 450 properties in the town were devastated with the 2011 fire, including the brand new Slave Lake Government Centre and town office (Flat Top Complex Wildfire Review Committee. May, 2012).

Town Council consists of an elected mayor and 6 councillors. A Chief Administrative Officer runs the administration, reports to Town Council and participates in the Tri-Council Secretariat.

1.3.3 Regional Governance Tri-Council is responsible for approving and implementing the Regional Growth Plan. The roles for Tri-Council, and CAO Secretariat have been established as (Sutherland, 2012b and 2014):

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“Tri-Council. Acting collectively, the Tri-Council will lead the Lesser Slave Lake Region recovery with the aim of returning the Region to normalcy and positioning it for future growth. Using a policy-based governance model, it will provide strategic direction to and oversight of the recovery efforts implemented by the CAO Secretariat. As required, it will provide a policy framework in support of the regional recovery efforts.

CAO Secretariat. Acting collectively, the CAO Secretariat is responsible for implementing the strategic regional recovery direction provided by the Tri- Council. It is the principal advisor to the Tri-Council and will provide it with policy advice as required. The CAO Secretariat will provide recovery-related, operational direction to the RRCG and ensure that the recovery Work Plan is carried out. It will coordinate the recovery-related activities of the Municipalities and First Nation with those related to regional recovery. It will ensure that the Town, MD and First Nation are positioned to take over the remaining responsibilities of the RRCG by 31 March, 2014. It will coordinate the agendas for meetings of the Tri-Council and ensure that records of its deliberations are kept. The CAO Secretariat has primary responsibility for recovery-related issues management on behalf of the Tri-Council.

This regional governance model was established initially to address post fire recovery. The model is intended to continue after the recovery period to address policy and coordination for the Tri-Council region. The Regional Recovery Coordination Group (RRCG) is a temporary organization made up of Provincial employees and contracted advisors assigned by the Government of Alberta to assist the Town, MD and First Nation with their recovery efforts. It is anticipated that the RRCG will have handed over its remaining responsibilities to be incorporated into the normal operations of the Town, MD and First Nation respectively by 31 March, 2014.

Figure 1.3 shows the Governance Protocol between Tri-Council, CAO Secretariat, Recovery Committees and Working Groups, MD, Town and SFN initiatives.

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Figure 1.3 Governance Protocol Diagram Source: Tri-Council and CAO Secretariat Governance Protocol (Sutherland, 2012b)

1.3.4 Tri-Council Vision Tri-Council vision for the region was developed in a joint planning session shortly after the 2011 wildfire. The vision for the region was stated as (Sutherland 2012a):

“... the Region collectively and our three jurisdictions acting cooperatively are the primary service centre for north, central Alberta while providing a quality of life for our residents that balances economic prosperity with environmental and social responsibility.”, and

“The jewel of Alberta where you come for a job and stay for the lifestyle”

1.3.5 Tri-Council Regional Growth Plan Goal Sutherland (2012a) in the Tri-Council Strategic Plan identifies a number of goals and key principles. For Regional Recovery Plan “the goal of long-term

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recovery is to move the ... [Lesser Slave Lake Region] ... toward self-sufficiency, sustainability and resilience “(ibid). And further” This is essential if we are to succeed in accomplishing the goals of recovery while taking advantage of the opportunities that recovery presents to position the Region and its communities to be economically, environmentally and socially successful well into the future”(ibid). Restating the goal in terms of the Regional Growth Plan:

The Goal of the Tri-Council Regional Growth Plan is to better position the Region and its communities by fostering regional cooperation and collaborative strategies which produce balanced, integrated, sustainable and resilient growth.

The tools to deliver this goal within the scope of the Regional Growth Plan are in the realm of regional land use and economic planning.

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Tolko Mill, Mitsue Industrial Park Photo Courtesy of the Regional Recovery Coordination Group

2 ECONOMIC DEVELOPMENT & HOUSING

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The Tri-Council region is located in the north central area of Alberta and is known for being an important resource community in the Province. The core settled area around the Town serves as a hub for a large region of the Green Zone, extending north into the MD of Opportunity, east past the Athabasca River, south into the Swan Hills and west along the Lesser Slave Lake south shore.

The economic development and housing section will focus on three main topics:

1. Regional Population Growth 2. Regional Economic and Industrial Development 3. Housing.

2.1 Population Growth

2.1.1 Current Demographic Characteristics The current demographics of the Tri-Council communities are reflective of the values, economic conditions, and preferences of previous generations of residents in the Tri-Council region. These characteristics are expected to, in part, shape the population growth in the region moving forward. In particular, the current age and the prevailing migration, fertility, and mortality rates of the regional population will, in part, determine the nature of population growth in the future. These key demographic variables differ across Tri-Council communities and from the province overall.

2.1.1.1 Fertility Rates As shown in Figure 2.1 below, the fertility rates in the Tri-Council region are well above the provincial average, particularly amongst the younger (15 to 29) contingent of the population, and below the provincial average for those women aged 30 to 50.

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160 140 120 100 80

Fertility Fertility Rate (Births/1000) 40 20 0 15to19 20to24 25to29 30to34 35to39 40to44 45to49

Regional 2012 Fertility Rate Alberta 2012 Fertility Rate

Figure 2.1 Regional and Provincial Fertility Rates Note: Regional data based on 2012 Aspen View Health Region fertility data.

2.1.1.2 Age Distribution In addition to the younger portion of the regional population displaying above average fertility rates, the population within the Tri-Council region is comparatively younger than the province overall. The average age in the region is 33.6 years as compared to the provincial average of 37.5. A detailed distribution of the population across age cohorts within the region and across the province can be seen in Figure 2.2, Figure 2.3 and Figure 2.4 below.

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85+ 80 to 84 75 to 79 70 to 74 65 to 69 60 to 64 55 to 59 50 to 54 % Male 45 to 49 40 to 44 35 to 39 % Female

Age Age Cohort 30 to 34 25 to 29 AB % Female 20 to 24 15 to 19 AB % Male 10 to 14 5 to 9 0 to 4 10 5 0 5 10 Percent

Figure 2.2 2011 Town of Slave Lake Population Distribution As shown in Figure 2.3 above, a larger proportion of the Town’s population is below the age of 35 as compared to the province overall. This distributional irregularity has resulted in an average age of 31 in the Town which is lower than the provincial average of 37.5.

85+ 80 to 84 75 to 79 70 to 74 65 to 69 60 to 64 55 to 59 50 to 54 % Male 45 to 49 40 to 44 35 to 39 % Female

Age Age Cohort 30 to 34 25 to 29 AB % Female 20 to 24 15 to 19 AB % Male 10 to 14 5 to 9 0 to 4 10 5 0 5 10 Percent

Figure 2.3 2011 M.D. 124 Population Distribution Contrary to the Town, the population of the M.D. is comparatively older than the provincial overall with an average age of 39 as compared to the provincial average of 37.5. The population distribution shown in Figure 2.3 above shows that the proportion of the M.D. population between ages 20

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and 44 is substantially less than the province whereas the proportion of people over the age of 45 is higher than the province overall. An exception is the 15 to 19 cohort which is well above the provincial average for both males and females.

85+ 80 to 84 75 to 79 70 to 74 65 to 69 60 to 64 55 to 59 50 to 54 % Male 45 to 49 40 to 44 35 to 39 % Female

Age Age Cohort 30 to 34 25 to 29 AB % Female 20 to 24 15 to 19 AB % Male 10 to 14 5 to 9 0 to 4 10 5 0 5 10 Percent

Figure 2.4 2011 Aggregate Tri-Council Population Distribution Together, the population of the Sawridge First Nation, the young population of the Town, and the older population of the M.D. combine to create a regional population distribution (Figure 2.4 above) that is roughly in line with the province overall.

2.1.2 Historic Population Growth An examination of historic population growth between 2001 and 2011 reveals that:

 Population growth in the region lagged behind that of the province during the 2001 to 2011 period.  the MD (0.3%)and the Town (0.4%) both grew at rates roughly in line with the region overall (0.3%) while the Sawridge First Nation On- Reserve population grew rapidly (5.4%), albeit from a comparatively small number;  the population in the region averaged an annual growth rate of roughly 0.3%, well below the provincial average of 2.1%;  over the ten-year period, approximately 70% of the regional population has been drawn to the Town as compared to 30% in the M.D.;  The on-reserve population of the Sawridge First Nation accounts for less than half of one percent of the regional population.

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Above-average fertility rates in a population, as described in the preceding section, generally leads to above average population growth. However, in the case of the Tri-Council area, the high fertility rates are offset by a high rate of out-migration which has resulted in the relatively low growth rates seen in Table 2—a.

Table 2—a Historic Population Summary 2001 2011 Average Annual Community Population Population Growth Rate [%] Town of Slave Lake 6,600 6,780 0.3% Municipal District 124 2,825 2,930 0.4% Sawridge First Nation (on-reserve) 20 45 5.4% Total Region 9,445 9,755 0.3% Alberta 2,974,810 3,645,260 2.1%

2.1.2.1 Non-Permanent Population The Area has a sizeable non-permanent population of primarily resource- based workers. According to Tri-Council representatives, a rough estimate of the non-permanent population is in the range of 1,500 people during the winter season and 500 in the summer season (5-15% of the regional permanent population), distributed across the forestry, energy and construction sectors. The non-permanent population tends to stay in area hotels and motels, apartments and work camps located in the M.D. A portion of the current non-permanent population has been housing and other construction workers active on fire rebuild projects.

2.1.3 Population Projections Population projections for the Tri-Council region were developed for three growth scenarios:

 Base Scenario – historic rates of birth, mortality, and net migration - reflective of the minimal growth experienced over past 15 years. Assumes no major new industrial developments and a continuation of the long-term forestry trend of increased mechanization.  Medium Scenario – base scenario plus in-migration associated with the development a local supply chain to support the development of the oil sands resource in the M.D. of Opportunity.  High Scenario – medium scenario plus additional economic growth in the forestry sector associated with the addition of mill capacity in the region.

The results under each of the growth scenarios for the region overall are presented in Table 2—b. It should be noted that the on-reserve population

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of the Sawridge FN is a function of the availability of housing which is largely controlled by the Nation itself. Therefore, the future on-reserve population of Sawridge First Nation used in each of the scenarios is based on information provided by the Nation regarding the future availability of housing on reserve.

Table 2—b Tri-Council Regional Population Projection Summary 2013 2036 Average Annual Scenario Population Population Growth Rate [%] Base 10,070 10,705 0.27 Medium 10,070 12,785 1.04 High 10,070 13,215 1.19

The balance of this section is focused on the presentation of the Medium Scenario results. Under these assumptions, it is expected that over the next 23 years:

 Slave Lake will grow at approximately 0.9% annually, above the historic rate of 0.3%.  The M.D. will grow at approximately 1.2% annually, above the historic rate of 0.2%.  The on-reserve population of the Sawridge FN will grow at a rate of 3.3% annually, below the historical rate of 5.4%.

The population of Tri-Council communities at five-year intervals between 2013 and 2036 under the medium growth scenario can be seen in Table 2—c below.

Table 2—c Medium Scenario Population Projection Summary Community 2013 2018 2023 2028 2033 2036 Town of Slave Lake 6,980 7,540 7,945 8,255 8,495 8,620 Municipal District 124 3,025 3,320 3,560 3,770 3,940 4,025 Sawridge First Nation (on-reserve) 65 85 90 110 125 140 Total Region 10,070 10,945 11,595 12,135 12,560 12,785

Population distributions for the Town, M.D., and the region overall for the anticipated population in 2036 can be seen in Figure 2.2 to Figure 2.4.

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85+ 80 to 84 75 to 79 70 to 74 65 to 69 60 to 64 55 to 59 50 to 54 45 to 49 40 to 44 35 to 39 % Male

Age Age Cohort 30 to 34 25 to 29 % Female 20 to 24 15 to 19 10 to 14 5 to 9 0 to 4 10 5 0 5 10 Percent

Figure 2.5 Town of Slave Lake Population Pyramid 2036

It is anticipated that the above-average proportion of the population that was below the age of 30 in 2011 will have aged resulting in a broader distribution of population across age cohorts by 2036. Also, the above- average fertility rate in the region is expected to persist and continue to result in a large contingent of children being born.

85+ 80 to 84 75 to 79 70 to 74 65 to 69 60 to 64 55 to 59 50 to 54 45 to 49 40 to 44 35 to 39 % Male

Age Age Cohort 30 to 34 25 to 29 % Female 20 to 24 15 to 19 10 to 14 5 to 9 0 to 4 10 5 0 5 10 Percent

Figure 2.6 M.D. 124 Population Pyramid 2036

The above-average age population within the M.D will continue to age resulting in a disproportionately top-heavy or older population distribution in 2036. The above-average fertility rate in the region is expected to persist

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and continue to produce a large contingent of children being born which will contribute to a widening of the base of the population distribution as compared to 2011.

85+ 80 to 84 75 to 79 70 to 74 65 to 69 60 to 64 55 to 59 50 to 54 45 to 49 40 to 44 35 to 39 % Male

Age Age Cohort 30 to 34 25 to 29 % Female 20 to 24 15 to 19 10 to 14 5 to 9 0 to 4 10 5 0 5 10 Percent

Figure 2.7 Tri-Council Regional Population Pyramid 2036

As is the case at present, the combination of the young population of the Town and the comparatively older population of the M.D. is likely to result in a somewhat more balanced distribution of the population across age cohorts for the region overall, albeit somewhat over represented in the older age cohorts.

2.1.3.1 Non-Permanent Population Under medium-growth scenarios, which include some regional growth attributed to local supply chain development driven by oil sands projects in the M.D. of Opportunity, the Area’s non-permanent population is expected to increase. This will be offset to some degree in the short term with the exit of construction workers completing post-fire rebuild projects.

Based on the estimates of the existing population (Section 2.4.2.1), the expected increase to the non-permanent population could be in the range of an additional 250 to 1000 persons, depending on the season and project developments underway. The actual number could vary substantially, depending on the actual increase in the level of local supplier firms, and uptake of drilling activities drawing on Slave Lake as a support base. The size and trends of the Area’s non-permanent population warrants monitoring over time.

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2.2 Economic Development Map 2.1 Regional Context

2.2.1 Vision and Mission Statements The Slave Lake Regional Tri-Council developed an Economic Development Strategic Plan in 2012 that provides a framework for addressing economic development matters in the region for the next three years. One of the committee’s first undertakings was to provide a vision statement to govern the region’s economic direction.

“The Lesser Slave Lake Tri-Council area is a vibrant, prosperous, economically and culturally diverse service hub for north central Alberta offering the opportunities and amenities that make it a location of choice for those who live, work, and visit.”

The vision speaks to the needs of the local businesses community and focuses on the long term economic sustainability of the region. The Economic Development Committee further defined the region’s economic direction with the provision of a mission statement.

“We lead the planning and implementation of Tri-Council’s strategic economic development activities, in a social and environmentally responsible manner, to sustain, promote, and diversify the economic resiliency and growth of our member communities.”

The vision and mission statements speak to the need to provide a high quality of life to establish the region as a favored place to both live and to do business in. In order to retain people over the duration of their working careers, the region needs to offer a varied choice of opportunities to its residents.

2.2.2 Strategic Goals As part of a strategic planning session, the Economic Development Committee identified the following six strategic goals:

1. To ensure adequate land for development in all zoning categories in the Tri-Council region to allow for continuous and sustainable growth, in the short and long term.

2. To develop and market business attraction and retention tools to various stakeholders for continual investment, growth, and expansion of the Slave Lake region.

3. To facilitate affordable housing research and solutions in collaboration with key stakeholders for the Slave Lake region.

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4. To build and strengthen key stakeholder relationships in the local area, the region, and throughout the province for continued leveraging of resources to achieve strategic goals.

5. To identify and facilitate a regional labour force strategy in response to and in anticipation of current and future growth in labour needs in the Tri-Council region.

6. To increase capacity for tourism through marketing materials and infrastructure investments to enhance current regional amenities for future generations.

The following sections build on the work undertaken by the Economic Development Committee in the Slave Lake Regional Tri-Council Economic Development Strategic Plan.

2.2.3 Economic Baseline The Regional Growth Plan (RGP) study area, also referred in this section as “Slave Lake Region” has its economic roots in the resource sector – primarily the forestry and traditional oil and gas sectors - and those industries continue to play a critical role in the economic well being of the region. Two additional sectors are playing an increasingly important role in the region’s economy – the tourism sector and the region’s role as a retail service sector centre.

Although the North American economy has emerged from the recession that impacted economies starting in the fall of 2007, there continues to be uncertainty in financial markets and a number of key economic indices. As was evident during the recent downturn, the reasons behind investment decisions are often made outside the control of local businesses.

The pursuit of business opportunities – whether it is through the retention of existing businesses, the attraction of new businesses or the growth and development of existing businesses - now requires the ability to function in a climate of constant change – as well as a climate of increased competition for jobs and investment. It seems likely that this environment will be the new reality for the foreseeable future.

2.2.3.1 Economic Profile As discussed in the population growth section of this report, the Slave Lake Region’s population is currently estimated at approximately 10,100 people. Over the past ten years, the region’s population has remained relatively constant increasing at roughly 0.3% per year from 2001 to 2011, well below

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the average annual rate of growth of 2.1% experienced across Alberta during that same time period. Contributing to the Region’s minimal growth has been the recent economic slowdown, which contributed to the shutdown of the Tolko Mill in 2007 and the decrease in associated indirect and induced employment impacts. The recent economic downturn impacted many of the resource based communities in a similar fashion, with annual growth rates considerably lower than the 2.1% experienced for the province as a whole. Examples of the annual population growth rates in other resource based communities over the 2001 to 2011 time period are as follows: Town of Hinton 0.2%; Town of Bonnyville 0.9%; Town of High Prairie -0.5%; Town of Peace River 0.8%; Town of High Level 0.6%; Town of Edson 1.1%; Town of Grande Cache 1.2%; and Town of Whitecourt 1.4%.

The Slave Lake Region has a relatively young population, with a median age of 34.3 years. There is a significant difference between the Town of Slave Lake whose average is 30.8 years old and the M.D. of Lesser Slave River whose average is 43.3 years old. This compared to an average of 37.5 years for the province as a whole.

2.2.3.2 Aboriginal Population The Slave Lake Region also has a fairly significant aboriginal population with roughly 25% of the Town of Slave Lake’s and 19% of the M.D. of Lesser Slave River’s populations being composed of aboriginal peoples. Combined, roughly 23.7% of the Region’s population is aboriginal compared to 6.1% for the Province of Alberta and 4.2% for Canada. There are distinct differences between the age profiles of both the aboriginal population and the rest of the region as well as between the Town and the M.D. Table 2—d shows the median age for the Town, the Municipal District, and the Region as well as for the Province.

Table 2—d Median Age Slave Lake Region Aboriginal Other Total Town of Slave Lake 24.2 33.0 30.8 M.D. of Lesser Slave River 33.5 45.6 43.3 Slave Lake Region 25.7 36.9 34.3 Alberta 25.3 38.3 37.5

As can be seen in Table 2—d, the Region’s relatively young population is primarily a function of its fairly significant aboriginal population.

A significant difference exists between the growth rates of the Region’s aboriginal population compared to the population for the rest of the Region. Table 2—e shows this relationship for the Town of Slave Lake, the M.D. of Lesser Slave River and for the Region as a whole.

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Table 2—e Growth by Demographic Segment: 2001 to 2006 2001 2006 Difference Town of Slave Lake Aboriginal 1,770 2,065 295 Other 4,830 4,640 -190 M.D. of Lesser Slave River Aboriginal 570 610 40 Other 2,255 2,210 -45 Sawridge Aboriginal 20 45 25 Regional Total Aboriginal 2,360 2,720 360 Other 7,085 6,850 -235 Total 9,445 9,570 125

There are distinct differences between the age profiles of both the aboriginal population and the rest of the region as well as between the Town and the M.D. For both the Town and the Municipal District, the aboriginal population is growing at a faster rate than for the remainder of the population – which actually decreased for both the Town (-3.9%) and the M.D. (-2.0%) from 2001 to 2006. Using aboriginal data for 2011 is problematic as Statistics Canada has altered the way it collects this information – relying on a voluntary sample - making it less reliable than in the past.

2.2.3.3 Labour Force The Region’s labour force participation rate of 78.8% (81.0% in the Town and 73.5% in the M.D.) is high compared to the Alberta average of 74.0%. The higher rate in the Town of Slave Lake compared to the M.D. of Lesser Slave River is in a large part due to the Town’s relatively young population as compared to its rural counterpart. If the population over the age of 65 is excluded then the participation rate is relatively comparable between the Town and Municipal District.

It is also interesting to note that labour force activity - participation rates, employment rates – for the Slave Lake Region is high relative to comparator communities. Table 2—f shows the participation rate for the Town of Slave Lake, the M.D. of Lesser Slave River, the Region, several comparator communities as well as for the province as a whole.

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Table 2—f Labour Force Activity Participation Rate Town of Slave Lake 81.0% MD of Lesser Slave River 73.5% Lesser Slave River Region 78.8% Town of Athabasca 69.1% Lac La Biche County 71.0% Town of Peace River 81.5% Alberta 74.0% Source: Statistics Canada Federal Census, 2006.

Labour force participation rates are a function of a number of factors – the robustness of the local economy, education attainment (which increases labour force participation), the demographic profile of the population, the proportion of the population over the age of 65, as well as homeownership which interestingly negatively impacts the labour force participation rate.

The following two figures provide a breakdown of the combined Town of Slave Lake and the MD of Lesser Slave River’s labour force – the first Figure 2.8 by major industry – and the second Figure 2.9 by major occupation.

As can be seen in Figure 2.8, over twenty percent of the labour force works in the resource sector. Another roughly 17% of the workforce is employed in other services which consists of businesses not classified to other sectors such as repair or maintenance shops, personal care services, pet care, etc.

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Resource-based industries

Other services

Retail trade

Business services

Manufacturing

Construction

Health care and social services

Educational services

Wholesale trade

Finance and real estate

0% 5% 10% 15% 20% 25% Alberta Region Figure 2.8 Employment by Major Industry (2006) Source: Statistics Canada Federal Census, 2006.

Relative to the overall provincial average, the labour force residing in The Slave Lake Region in 2006 had a higher proportion of workers engaged in the following:

 Resource based industries (84% higher than the provincial average);  Retail trade (24% higher than the provincial average); and  Manufacturing (48% higher than the provincial average).

Conversely, relative to the overall provincial average, the labour force residing in the Slave Lake Region has a lower proportion of workers engaged in the following:

 Other services (which consists of businesses not classified to other sectors such as repair or maintenance shops, personal care services, pet care, etc.);  Business services;  Construction;  Health care and social services;  Educational services;  Wholesale trade; and  Finance and real estate.

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The 2006 Employment by Major Industry likely under represents the current situation with respect to construction services. The Slave Lake Region currently has a higher proportion of its population engaged in construction activities associated with the Wildfire Recovery Program. It is expected that this segment will return to historical level once the Wildfire Recovery Program is completed.

As can be seen in Figure 2.9, relative to the overall provincial average, the labour force residing in The Slave Lake Region in 2006 had a higher proportion of workers engaged in the following:

 Trades, transport and equipment operators and related occupations (37% higher than the provincial average);  Sales and services occupations (just 3% higher than the provincial average);  Occupations unique to primary industries (82% higher than the provincial average); and  Occupations unique to processing, manufacturing and utilities (78% higher than the provincial average).

Conversely, relative to the overall provincial average, the labour force residing in the Slave Lake Region has a lower proportion of workers engaged in the following:

 Business, finance and administration occupations;  Management occupations;  Natural and applied sciences and related occupations;  Occupations in social science, education, government service and religion;  Health occupations; and  Occupations in art, culture, recreation and sport.

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Trades, transport and equipment operators

Sales and service

Business, finance and administration

Unique to primary industry

Management

Processing, manufacturing and utilities

Natural and applied sciences

Social science, education, government service and religion

Health

Art, culture, recreation and sport

0% 5% 10% 15% 20% 25% 30% Alberta Region Figure 2.9 Employment by Major Occupation Source: Statistics Canada Federal Census, 2006.

The proportion of Slave Lake Region’s residents aged 15 years or over with either some college or university education is approximately 24%, with the proportion being roughly 5% higher in the Town than it is in the M.D. When taking into consideration trades certificates, apprenticeships and diplomas this percentage increases to 40%, with the level being roughly 8% higher in the Town than it is in the M.D. Table 2—g shows the educational attainment for those three agreements.

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Table 2—g Educational Attainment M.D. of Lesser Town of Slave Slave Lake Slave Lake River Region Alberta No certificate, diploma or degree 32.0% 35.7% 33.1% 23.4% High school certificate or equivalent 25.7% 29.4% 26.8% 26.2% Apprenticeship or trades certificate or diploma 16.9% 13.6% 15.9% 10.9% College, GEGEP or other non- university certificate or diploma 15.1% 15.0% 15.1% 18.0% University certificate or diploma below the bachelor level 1.6% 2.3% 1.8% 4.0% University certificate, diploma or degree 8.8% 3.5% 7.2% 17.5%

College or University 25.5% 20.8% 24.1% 39.5% Apprenticeship or trades certificate or diploma 16.9% 13.6% 15.9% 10.9% College, University, Apprenticeship or Trade Certificate 42.4% 34.3% 40.0% 50.4%

The percentage of residents with post-secondary credentials in the Slave Lake Region is somewhat lower than for Alberta for both those with either some college or university education (24% for the region compared to 40% for the Province) as well as for those individuals with either trades certificates, apprenticeships or diplomas (40% for the region compared to 50% for the Province).

2.2.3.4 Transportation Network The Slave Lake Region has a fully developed transportation network that includes access to air, rail and highway system. The Slave Lake Airport is located within the Town of Slave Lake and is capable of accommodating light aircraft and helicopters. The airport has fuelling facilities and is capable of accommodating night landing.

Rail service is provided to the area by the Canadian National Railway Company (CN). The line extends north from Edmonton, through the Slave Lake Region and north through Peace River, High Level and into the Northwest Territories. Two trains travel through the Region each day, transporting in the order of 150 rail cars.

There are two highways that connect the Slave Lake Region to the rest of the province and to points beyond. Those highways are:

 Primary Highway 2, which runs north-south, passing through the Town of Slave Lake connecting:

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o To the south with the Town of Athabasca and further to Edmonton; o To the northwest to the Town of High Prairie and further to the Town of Peace River and the City of Grande Prairie; and  Secondary Highway 88, which originates in the Town of Slave Lake and circles around the east and north end of Lesser Slave Lake connecting: o To Highway 754 and Wabasca- Desmarais and further to a number of First Nations, Mackenzie County and the settlements of Fort Vermillion and La Crete as well as to the Northwest Territories.

The highway system within the Slave Lake Region has relatively high traffic volumes levels, with daily vehicle movements (in either direction) in 2012 in the order of 4,700 on Highway 2 east of the Town of Slave Lake. Traffic volumes on Highway 88 are now approaching 1,900 daily vehicle movements (in either direction. By comparison, traffic levels on Highway 43 (which connects the City of Grande Prairie to the City of Edmonton via the Town of Whitecourt are approaching 6,500 daily vehicle movements (in either direction) in 2012. In addition to the two Highways identified above, Highway 754 connects the Slave Lake Region to Wabasca-Desmarais area and the oil sands resources in the M.D. of Opportunity.

Traffic volumes on the two highways that service the Slave Lake Region are showing significant levels of positive growth. Traffic volumes have increased steadily from 1,400 daily vehicle movements on Highway 2 in the 1970’s to 4,700 daily vehicle movements in 2012 (an increase of 240%) and from 350 daily vehicle movements on Highway 88 in the 1970’s to 1,900 vehicle movements in 2012 (an increase of 440%). By way of comparison, daily vehicle movements on Highway 43 increased by 300% over the same time period.

Table 2—h presents the changes in traffic volume levels at key points on the regional highway system.

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Table 2—h Traffic Volume Changes Average Annual Rate of Change in AADT 1970’s 1980’s 1990’s 2000’s Highway 2 (east of Slave Lake) 4.7% 2.7% 2.5% 2.6% Highway 88 (south of Highway 754 intersection) 1.7% 5.2% 6.1% 5.2% Highway 88 (north of Highway 754 intersection) -7.8% 9.8% 2.0% 5.0% Highway 754 (northeast of Highway 88 intersection) 8.4% 7.2% 8.2% 4.6% Highway 813 (between Wabasca & Athabasca) n/a n/a n/a 6.4%

A number of observations can be made with respect to traffic movements in the region:

 Traffic movements along Highway 2 through the region have been increasing at a steady rate – faster than the regional population indicating that the activity occurring “around and beyond” the region is increasing at a faster rate than in the region itself.  Traffic movements north along Highways 88 and 754 have been increasing rapidly. The recent paving of Highway 88 enhances economic development in northern Alberta, reduces safety concerns and generally improves access and linkages between the Slave Lake Region, northern Alberta and to the Northwest Territories. Highway 88 offers an alternative route to the Peace Oil Sands and Seal Lake Deposit. In addition, the possible extension of Highway 58 from Rainbow Lake to the British Columbia border and eventually to Fort Nelson could further enhance this route as an alternative to the CANAMEX Trade Corridor route.  Traffic movements along Highway 813 between Wabasca- Desmarais and Athabasca – an alternative route to the oil sands resources in the M.D. of Opportunity – have also increased rapidly, increasing from 540 daily vehicle movements in 2002 to 1,000 daily vehicle movements in 2012.

A number of conclusions can draw with respect to the economic baseline factors of the Slave Lake Region. These include the following:

 The population has remained relatively stagnant with a certain segment declining  The population is generally aging  There is a continued out-migration of younger residents  Education attainment falls behind in comparison to the rest of the Province

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 Aboriginal populations are increasing at a faster rate than the rest of the region.  Traffic volumes in the region have increased at a significant rate over the past ten years.

2.2.4 Competitive Comparison A comparison with 28 other communities was carried out to evaluate the relative competitive position of the Slave Lake Region. A broad range of communities were used – ranging from large communities like the Cities of Edmonton and Calgary – to smaller communities like the Towns of Athabasca and Bonnyville. The comparisons were undertaken to identify which areas might need to be addressed in order to attract and retain businesses in the Region.

A number of different comparative benchmarks were used to evaluate the competitive position of the Slave Lake Region. Figure 2.10 provides the range of values for four of the benchmarks – household income, the cost of serviced industrial land, off-site levies and housing costs - for the Region and the comparative communities. The bar presents the range of results for the comparative communities with the dot representing the Region’s position within that range.

800,000 13/29 8/23 19/25 Rank 13/18 18/29 13/29 $94,800 $400,000 $15,400 SL Region $32,700 $331,200 $317,100 700,000 $99,900 $394,000 $37,100 Avg $69,700 $359,400 $305,600

600,000

500,000

400,000

300,000

200,000

100,000

0 Household Serviced industrial Min Off-Site Levies Max Off-Site Levies Average Average Assessed Income ($) land ($/acre) (per acre) (per acre) House Price Value per Dwelling

Figure 2.10 Benchmark Indicators Graph #1

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The Regional Municipality of Wood Buffalo was excluded from Figure 2.10 as many of their benchmark indicators fall far outside the range for the other municipalities (i.e. $1.2 million for serviced industrial land, $194,000 average household income) which makes it difficult to interrupt the results on the graph. A detailed table is provided at the end of this section which includes the Regional Municipality of Wood Buffalo data.

2.2.4.1 Household Income Income levels vary significantly across the province. The National Household Survey from the 2011 Federal Census provides a variety of income measures for households based on the year 2010. Average household income was used and is based on the total income for all members of that household. As can be seen in Figure 2.10, the Region’s average household income at $95,000 fell in the middle which ranged from a low of $64,400 (Town of Cochrane) to a high of $131,500 for Strathcona County. The Region ranked 13th out of 29 municipalities and is slightly lower than the average of $99,900 for the municipalities that were included in the comparison.

2.2.4.2 Serviced Industrial Land The availability of serviced non-residential land – particularly competitively affordable land – is a key component of economic development. There are three key determinants of land costs i) location, ii) supply/demand and iii) servicing costs. Location can impact property values as a result of their proximity to transportation (arteries, transit centres, etc.), the presence of other businesses that are complementary (i.e. retail stores interspersed with restaurants) and the income levels and other demographics of the local population. Figure 2.10 shows that the Region’s average cost of serviced industrial land at $400,000 per acre is somewhat high compared to the other communities which ranged from a low of $64,400 (City of Brooks) to a high of $648,500 per acre for the City of Edmonton. The Region ranked 8th out of 23 (data was not available for all of the municipalities) and is slightly higher than the average of $394,000 per acre for those communities that were surveyed.

Industrial and commercial serviced land in the Slave Lake Region – although not overly expensive relative to comparative communities – is high given the relatively low level of growth experienced in the region over the past ten years. One factor that has impacted serviced land costs is the impact of the fire on the development and construction industries. The increased demand placed on the development industry as a result of the fire has extended

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beyond the peak construction and development period and is expected to continue to impact the local market for the next several years before making a slow downward correction.

2.2.4.3 Off-Site Levies Off-site levies are a key fiscal tool that municipalities use to assist in the recovery of capital costs associated with infrastructure. In today’s economic climate, these levies help address growth requirements arising from increasing service demands. Off-site levies were initially introduced to help finance capital infrastructure shortfalls. Initially these levies tended to be relatively moderate, but with the increasing cost of paying for infrastructure and front ending requirements – the burden of levies and developer contributions have increased significantly. The fundamental principle of growth paying for itself has been ingrained within municipal fiscal policies. In communities with strong steady growth, paying for infrastructure – either through levies or front-ending infrastructure costs – doesn’t significantly impact the development process.

As can be seen in Figure 2.10, the Town’s average cost of off-site levies is relatively moderate ranging from roughly $15,400 per acre to $32,700 per acre depending on where the development occurs within the Town. Off-site levies for the other communities ranged from a low of $1,200 (Sturgeon County) to a high of $123,000 for the City of Calgary on the low end, to $15,000 per acre (Town of Athabasca) to a high of $202,200 per acre (City of Medicine Hat) on the high end. The Town ranked 19th out of 25 and was quite a bit lower than the average of $37,100 on the low end, and 13th out of 18 with an average of $69,700 on the high end.

2.2.4.4 House Prices House prices and a range of housing options to meet the demands of its residents are critical for encouraging economic development. Two measures were used to benchmark the Region – average house prices – which is typically based on sales and average assessed values per dwelling. When the value of these two benchmarks is in sync, it typically indicates a situation where the houses being sold are representative of the entire housing market.

Tri-Council Regional Growth Plan page 39 Sawridge First Nation | M.D. of Lesser Slave River | Town of Slave Lake January, 2015

The data in Error! Reference source not found. demonstrates that the egion’s average house price at $330,000 fell in the middle which ranged from a low of $237,700 in the City of Brooks to a high of $550,000 in Sturgeon County. The Region ranked 18th out of 29 municipalities and was somewhat lower than the average of $359,400. With respect to assessed value per dwelling unit, the Region’s average at $307,300 fell in the middle which ranged from a low of $173,800 in the City of Brooks to a high of $570,000 in Sturgeon County. The Region ranked 13th out of 29 municipalities and is somewhat higher than the average of $305,600.

The cost of housing has continued to increase in Alberta. In 2013, residential prices were up on average from 2012 by 20% in north-eastern Alberta, by 14% in western Alberta, by 10% in the Grande Prairie area, by 9% in central Alberta, 8% in Calgary, 2% in the Edmonton region, by 1% in south central Alberta, 1% in the Lethbridge region and by just 0.2% in the Medicine Hat area. Lloydminster experienced a 2% decline and Fort McMurray a 7% decrease in 2013. Section 2.3 provides a more detailed examination of the RGP Study Area’s housing market.

Figure 2.11 provides the range of values for five of the benchmarks – population growth, wait time for development permits, average retail rates and mill rates - for the Region and the comparative communities.

1,000

27/29 6/29 5/25 Rank 11/29 8/29 14/29 2% 40 days $ 21/sf SL Region 28% 6.9 mills 10.0 mills 14% 39 days $18/sf Avg 28% 5.5 mills 11.0 mills

100 Logrithmic Scale Logrithmic

1 Population Max Wait Time Average Fiscal Capacity Residential Non - Residential Growth Devel Permit Retail Lease Non-Res % Mill Rate Mill Rate

Figure 2.11 Benchmark Indicators Graph #2

Tri-Council Regional Growth Plan page 40 Sawridge First Nation | M.D. of Lesser Slave River | Town of Slave Lake January, 2015

The Regional Municipality of Wood Buffalo was included in Figure 2.11 as their benchmark indicators fall within the range for the municipalities.

2.2.4.5 Population Growth Population growth can be a sign of the strength and diversity of the municipality’s local economy, a reflection of their strategic location, the quality of life and their relative affordability. Figure 2.11 shows that the Region’s population from 2006 to 2011 grew by approximately 2%, which is significantly lower compared to the other communities whose growth ranged from a low of -1% (Town of Hinton) to a high of 47% (City of Airdrie). The Region ranked 27th out of 29 and is significantly lower than the average of 14%. Refer also to Section 2.1 for a more detailed discussion on the Tri- Council Region’s population growth trends.

2.2.4.6 Maximum Wait Time for Development Permits Non-cost factors are just as important and often more important as cost factors in promoting economic development. A key indicator – one that can be measured - is the maximum wait time to obtain a development permit. The ability of a municipality to respond to development requests in a timely manner is often associated with a municipality having a business friendly environment.

As can be seen in Figure 2.11, the Town of Slave Lake’s maximum wait time at 40 days, is somewhat longer compared to the other communities whose maximum wait time ranged from a low of 7 days (Town of Drayton Valley) to a high of 180 (City of Airdrie). The Town ranked 6th out of 26 municipalities and is similar to the average of 39 days. Although the Town’s maximum wait to obtain a development permit time is 40 days, in practice the Town has achieved an average wait time of 7 days.

2.2.4.7 Average Retail Lease Costs Retail lease costs are used as a proxy to provide an indication of the overall costs of leasing industrial, commercial, office and retail space. Lease costs can vary over a relatively short time period, depending on the relationship between the demand and supply of available space.

With this in mind, the Town of Slave Lake’s average retail lease costs in the order of $21 per square foot, is somewhat higher compared to the other communities whose retail lease rates ranged from a low of $8 per square foot in the Town of Drumheller to a high of $28 per square foot in the City of Edmonton. The Town’s retail lease rates ranked 5th out of 22

Tri-Council Regional Growth Plan page 41 Sawridge First Nation | M.D. of Lesser Slave River | Town of Slave Lake January, 2015

municipalities and is somewhat higher than the average of $18 per square foot. The Town of Slave Lake does provide a range of leasing options with retail space available in the downtown for $14 per square foot and space in new construction available from $18 to $25 per square foot.

2.2.4.8 Municipal Fiscal Capacity Municipal fiscal capacity reflects the ability of a municipality to generate revenue for public spending. This capacity is determined by the amount of economic activity occurring within their boundary and is reflected by the associated assessment values – especially non-residential assessments which generate net positive revenues.

As can be seen in Figure 2.10, the Town of Slave Lake’s non-residential assessment percent at 28.5% falls in the middle compared to the other communities whose non-residential assessment percent ranged from a low of 11% for the Town of Didsbury to a high of 69% for the M.D. of Lesser Slave River. The Town ranked 11th and was slightly lower than the average for the municipalities surveyed at 30%.

The M.D. of Lesser Slave River’s non-residential assessment percent at 68.9% is on the high end compared to the other communities surveyed. The Municipal District was first out of 29 municipalities surveyed. This is not unexpected as rural municipalities often have a higher percent of their assessment base from non-residential properties.

Municipal Tax Rates

Municipal tax rates provide an indication of the tax burden exerted by a municipality and are largely a function of a municipality’s service provision, expenditures and assessment levels. The split between residential and non- residential mill rates provides an indication of the financial burden placed on non-residential relative to residential properties. A high split either in absolute or relative terms is an indication of the burden municipalities place on non-residential properties. Split mill rates are becoming increasingly popular – both with the number of municipalities that utilize them – as well as the level of the split between residential and non-residential mill rates. Over the past 20 years the percent of municipalities employing a split mill rate has increased from 25% to 85% of all municipalities. Over that same time frame, the average split has increased from non-residential rates being 7% higher to being 28% higher than residential mill rates.

Tri-Council Regional Growth Plan page 42 Sawridge First Nation | M.D. of Lesser Slave River | Town of Slave Lake January, 2015

As can be seen in Figure 2.11, the Town of Slave Lake’s and the M.D. of Lesser Slave River’s non-residential mill rates at 10.1860 and 10.3294 mills respectively, fell in the middle compared to the other communities whose non-residential mill rate ranged from a low of 5.6 mills for the Town of High River to a high of 18.6 mills for the City of Calgary. The Town ranked 14th and the Municipal District 13th out of 29 municipalities and both are somewhat lower than the average of 11.0 mills.

Table 2—i provides the detailed benchmarks for the Region and the 28 comparative municipalities.

Tri-Council Regional Growth Plan page 43 Sawridge First Nation | M.D. of Lesser Slave River | Town of Slave Lake January, 2015

Table 2—i Competitive Benchmarks

8.2227

9.6773

8.3395

8.8908

6.6780

6.3630

7.5835

8.9035

5.6166

8.8040

7.1100

7.3300

8.0333

9.9860

8.8896

9.0439

NonRes

18.0904

12.2872

12.2313

13.0669

17.3670

17.1561

16.7385

14.5573

11.5074

12.3837

18.5713

11.3664

16.0531

10.3294

Mill Rate Mill

Rate

1.2572

5.2312

3.3928

4.3752

7.8616

5.5195

6.0920

3.5390

4.8390

5.5432

5.5662

7.1030

4.8920

5.6166

5.4785

5.2584

7.2688

5.4052

8.3890

5.3332

4.9000

3.7968

7.1862

7.4755

3.2600

4.3423

2.3472

6.8880

6.3459

Res Mill Res Mill

10.1675

68.0

41.4

35.9

47.5

12.5

15.8

25.7

36.9

14.0

22.5

24.8

21.6

36.9

17.1

30.8

28.3

27.0

27.1

39.4

11.3

12.5

12.9

26.5

25.4

37.1

22.2

64.4

16.4

68.9

28.5

Fiscal

Capacity Capacity

Non-Res

Assmt %

Avg Avg

524,749

244,714

470,307

448,202

383,741

345,092

266,825

411,475

362,931

248,694

220,721

230,310

239,695

245,543

236,239

207,782

307,811

220,489

279,473

241,120

274,149

365,740

382,955

173,759

218,369

222,541

374,415

375,949

336,683

307,272

Dwelling

Value per per Value

Assessed

Avg Avg

Price

House

660,000

300,000

550,000

465,000

391,000

355,000

350,000

440,000

460,000

280,000

255,000

288,100

336,400

333,400

333,000

310,000

340,000

255,000

310,000

258,000

350,000

463,000

471,300

237,700

300,000

363,000

333,500

330,000

277,000

385,400

$67,282

$60,289

$96,045

$31,107

$42,318

$57,322

$23,000

$32,587

$59,052

$89,294

$46,385

$25,000

$15,000

$47,824

$32,714

$132,277

$202,191

$138,201

$126,931

n/a

(per acre)

$1,205

$2,514

$8,500

$8,499

$2,500

Off-Site Levies Off-Site Levies

$67,089

$15,800

$24,632

$45,063

$28,651

$82,273

$26,700

$55,980

$78,914

$47,862

$21,367

$15,653

$26,536

$39,453

$15,000

$15,903

$28,666

$64,254

$15,444

$103,429

$123,017

n/a

Avg Avg

9.00

7.50

45.00

18.00

16.00

23.00

18.00

10.00

14.00

10.00

16.00

28.00

11.00

21.00

19.00

26.00

10.00

17.00

18.00

25.00

21.00

Retail Retail

Lease

n/a

180

Max

Wait

Devel Devel

Permit

Time for

n/a

55,000

75,000

2010

175,000

550,000

450,000

350,000

450,000

300,000

500,000

200,000

184,500

250,000

350,000

325,000

560,000

100,000

734,000

148,000

185,000

375,000

200,000

n/a

42,000

2011

200,000

167,500

450,000

440,000

300,000

350,000

517,500

265,000

168,750

157,500

220,000

350,000

325,000

507,720

237,500

215,000

500,000

639,000

149,000

300,000

295,000

400,000

300,000

1,350,000

n/a

2012

200,000

550,000

475,000

388,513

350,000

329,616

500,000

275,000

250,000

182,000

250,000

350,000

375,000

648,529

255,000

165,000

500,000

600,000

148,000

465,000

400,000

Serviced industrial land ($/acre) land industrial Serviced

1,200,000

98,586

87,033

86,670

76,109

76,816

98,347

84,274

97,229

92,141

90,340

76,437

79,612

92,721

64,418

87,427

89,307

92,005

88,703

97,900

193,691

126,510

131,487

121,499

101,518

127,864

116,258

100,034

109,698

105,831

106,616

income ($)

Household Household

7.1

5.5

6.4

8.9

4.6

5.3

4.7

1.2

2.3

4.0

9.3

6.6

3.9

1.2

-1.0

–

27.3

12.1

33.9

42.9

13.5

11.8

20.6

16.8

11.2

15.1

27.8

10.9

15.9

28.1

47.1

(%)

2006

growth, growth,

Pop. Pop.

9,605

8,235

9,640

8,475

8,029

7,049

4,957

6,510

6,216

2,990

2,929

6,782

65,565

19,578

92,490

61,466

26,171

90,564

30,568

24,511

60,005

83,517

12,920

55,032

17,580

13,676

58,860

42,564

812,201

1,096,833

Population

Wood Buffalo

Whitecourt

Sturgeon County Sturgeon

Strathcona County Strathcona

St. Albert

Spruce GroveSpruce

Red Deer

Parkland County Parkland

Okotoks

Olds

Medicine Hat Medicine

Lethbridge

Hinton

High River High

Grande Prairie Grande

Edson

Edmonton

Drumheller

Drayton Valley

Didsbury

Devon

Cochrane

Calgary

Brooks

Bonnyville

Athabasca

Leduc Leduc County

Airdrie M.D. Of Lesser Slave River Slave Slave Lake

Tri-Council Regional Growth Plan page 44 Sawridge First Nation | M.D. of Lesser Slave River | Town of Slave Lake January, 2015

2.2.4.9 Conclusions A number of conclusions can be drawn with respect to the competitive comparison. These include the following:

 The Region’s average household income at $95,000 is slightly lower than the Alberta average of $99,900.  The Region’s population from 2006 to 2011 grew by approximately 2%, which is significantly lower than the average of 14% for those municipalities surveyed.  The Region’s average house price at $330,000 is somewhat higher than the average of $305,600 for those municipalities surveyed. Although only slightly higher than average, it is unusual that the Region’s housing costs are as high as they are given the region’s rather languid growth. The recent fire reconstruction efforts – as well as the higher than average development costs -are certainly contributing factors.  The Region’s average cost of serviced industrial land at $400,000 per acre is slightly higher than the average of $394,000 per acre for those communities that were surveyed.  The Town’s off-site levies are relatively moderate compared to those in the municipalities surveyed. Discussions with developers in the region indicate that the level of off-sites themselves are not an issue, but rather the front-ending of certain infrastructure costs coupled with uncertain growth prospects may be impacting their willingness to extend infrastructure to service new areas.  The Town of Slave Lake’s maximum wait time at 40 days is similar to the average of 39 days for those municipalities surveyed.  The Town of Slave Lake’s average retail lease costs at $21 per square foot are somewhat higher than the average of $18 per square foot for those municipalities surveyed.  The Town of Slave Lake’s and the M.D. of Lesser Slave River’s non-residential assessment percent at 28.5% and 68.9% respectively, fall in the middle for the Town and on the high end for the Municipal District compared to the other municipalities surveyed (average of 30%).  The Town of Slave Lake’s and the M.D. of Lesser Slave River’s non-residential mill rates at 9.986 and 10.3294 mills respectively, fell in the middle compared to the other communities who averaged 11.0 mills.

Tri-Council Regional Growth Plan page 45 Sawridge First Nation | M.D. of Lesser Slave River | Town of Slave Lake January, 2015

2.2.5 Business and Industry The Slave Lake Region has a relatively broad economic base, with in the order of 180 commercial and industrial businesses. Some characteristics of those businesses derived from recent business registration and payroll information filed with the Canada Revenue are presented below:

 approximately 45% of businesses in the Slave Lake Region have fewer than 5 employees,  another 10% of businesses in the Slave Lake Region have between 5 to 9 employees;  when self-employed individuals or small enterprises without registered payrolls are included, approximately 90% of all businesses in the Slave Lake Region have fewer than 10 employees;  the top three industry sectors, representing 47% of all businesses in the Slave Lake Region are Professional, Scientific and Technical Services; Construction; and Oil and Gas Services; and  Retail Trade; Wholesale, Transportation and Warehousing; and Accommodation and Food Services are also significant contributors – together accounting for approximately 26% of all businesses in the Slave Lake Region.

Table 2—j provides a comparison of the Slave Lake Region’s labour profile in relation to the Alberta profile.

Tri-Council Regional Growth Plan page 46 Sawridge First Nation | M.D. of Lesser Slave River | Town of Slave Lake January, 2015

Table 2—j Slave Lake Region Labour Profile MD of Lesser Slave Slave Regional Regional Alberta Sector Lake River Total percent Alberta Percent TOTAL 3,990 1,855 5,845 2,088,145 Agriculture, forestry, fishing and 50 135 185 3.2% 61,165 2.9% hunting Mining, quarrying, and oil and gas 465 230 695 11.9% 136,500 6.5% extraction Utilities 65 0 65 1.1% 22,035 1.1% Construction 455 155 610 10.4% 195,905 9.4% Manufacturing 170 135 305 5.2% 123,465 5.9% Wholesale trade 210 30 240 4.1% 89,000 4.3% Retail trade 535 225 760 13.0% 229,225 11.0% Transportation and warehousing 215 75 290 5.0% 104,770 5.0% Information and cultural industries 50 0 50 0.9% 35,465 1.7% Finance and Insurance 75 0 75 1.3% 68,760 3.3% Real estate and rental and leasing 40 0 40 0.7% 40,090 1.9% Professional, scientific and technical 95 75 170 2.9% 162,490 7.8% services Management of companies and 0 0 0 0.0% 2,535 0.1% enterprises Administrative and support 90 100 190 3.3% 72,965 3.5% Educational services 310 170 480 8.2% 141,550 6.8% Health care and social assistance 315 125 440 7.5% 206,695 9.9% Arts, entertainment and recreation 25 0 25 0.4% 39,720 1.9% Accommodation and food services 445 80 525 9.0% 125,810 6.0% Other services (except public 175 145 320 5.5% 101,275 4.8% administration) Public administration 180 155 335 5.7% 128,720 6.2%

As can be seen in Table 2—j, relative to the overall provincial average, the labour force residing in the Slave Lake Region in 2006 had a higher proportion of workers engaged in the following:

 Agriculture, forestry, fishing and hunting related occupations;  Mining, quarrying and oil and gas;  Construction;  Retail trade; and  Educational services.

The labour force statistics under represent some sectors – such as forestry – as other categories such as manufacturing contain employees that are traditionally thought of as working in the forestry sector.

West Fraser Mills Ltd., Vanderwell Contractors (1971) Ltd. and Tolko Industries Ltd. are three of the larger companies in the forestry sector in the Slave Lake Region. Under separate Forest Management Agreements (FMA), those three companies are allowed to harvest in the order of four million

Tri-Council Regional Growth Plan page 47 Sawridge First Nation | M.D. of Lesser Slave River | Town of Slave Lake January, 2015

cubic metres annually on roughly 1.3 million hectares of land to which they have rights. Those three agreements are show in Table 2—k.

Table 2—k Slave Lake Region Forest Management Areas Current Agreement Total Harvest FMA Land Original Start End Area Area Agreement Date Date (ha) (ha) Tolko Industries Ltd., Vanderwell Contractors (1971) Ltd., and West Fraser Mills Ltd. 2006 2006 2026 727,043 421,873 Vanderwell Contractors (1971) Ltd. 1997 1997 2017 58,535 49,152 West Fraser Mills Ltd. (Slave Lake) 1990 2012 2033 549,863 435,967

At 58,535 hectares, Vanderwell’s FMA is the smallest agreement in the Province, while the West Fraser Mills FMA and the Tolko/Vanderwell/West Fraser FMA are more representative of FMA’s in the Province which on average are approximately 650,000 hectares in size. Two of the three agreements have been signed recently, with 12 and 19 years remaining on their 20 year agreements. The third agreement is set to expire in 2017.

In addition to the timber operations, the three companies also operate a number of forestry processing facilities – sawmills, pulp operations and engineered wood products (OSB - Oriented Strand Board) – all of which are susceptible to swings in the North American economy especially changes in the housing market. After the recent economic downturn a number of Alberta forestry processing facilities were closed for indefinite periods. As can be seen in Figure 2.12, the market for OSB is significantly impacted by the North American housing sector – with roughly 60% of the market demand related to the residential construction and a further 14% of market demand accounted for by non-residential construction.

New Home 17% 33% Renovation 11% Non Residential 14% Furniture and Other 25% Products Other

Figure 2.12 North American OSB Usage In February of 2013, the Tolko Slave Lake OSB Mill announced that it was proceeding with preparations to reopen its Slave Lake Plant, which had

Tri-Council Regional Growth Plan page 48 Sawridge First Nation | M.D. of Lesser Slave River | Town of Slave Lake January, 2015

closed six years earlier in February 2007. Figure 2.13 shows the decline in housing starts in the United States over the past 7 years, as well as the forecasted increase which has lead to increased optimism in the forestry sector.

1.8

1.6

1.4

1.2

1.0

millions 0.8

0.6

0.4

0.2

0.0 2006 2007 2008 2009 2010 2011 2012 2013 2014 2015 Figure 2.13 United States Single Family Housing Starts The forecasted increases in the housing sector has increased confidence in the forestry sector and contributed to the reopening of a number of forestry processing facilities across the province including the OSB plant in the Slave Lake Region.

The Slave Lake Region has been associated with traditional oil and gas activity since the mid-1960’s. Although the immediate Region does not contain any oil sands development, there is an increasing amount of activity to the north in the M.D. of Opportunity. Alberta’s oil reserves are one of the world’s largest proven oil deposits, third only to the reserves found in Venezuela and Saudi Arabia. It has been estimated that there is as much as 173 billion recoverable barrels with an additional 150 billion barrels that will likely be recoverable with new retrieval methods. Figure 2.14 presents the top ten countries by oil reserves.

Tri-Council Regional Growth Plan page 49 Sawridge First Nation | M.D. of Lesser Slave River | Town of Slave Lake January, 2015

Figure 2.14 World Oil Reserves - 2013 Oil production is to a large extent produced in areas of the world that are not the most politically stable – and in this regard Canada stands out in the top ten oil producing countries in the world – providing a safe haven for supply.

Although there has been conventional cold production in the area north of Wabasca-Desmarais for many years, thermal in situ techniques have yet to proceed beyond a pilot, or demonstration phases. Several companies hold oil sands leases north of Wabasca-Desmarais and the potential does exist for in situ production in the area to increase substantially over the next decade.

The oil sands resources in the M.D. of Opportunity are sitting in carbonate formations – unlike the in-situ deposits in the Regional Municipality of Wood Buffalo (RMWB) which are primarily in sand and rock. There has yet to be a commercially viable carbonate in-situ facility built to date, but a number of many firms such as Laricina are using solvent additives at test projects to increase the potency of the steam and it appears that this approach is working and all signs are pointing to commercial viability.

There is some cold-production (water or polymer flooding) in the M.D. of Opportunity right now. This is mostly being done by CNRL and a little by Husky but so far accounts for very little production – roughly 60,000 barrels per day.

Access to the oil sands projects north of Wabasca-Desmarais is via an industry road that was once used exclusively for forestry but is now maintained by Laricina Energy, one of the firms currently operating a pilot facility in the area. In general, the leases north of Wabasca-Desmarais accessed via this road are approximately a two-hour drive from the hamlet. Contractors can reach the Hamlet, and thus the industry roads, from two

Tri-Council Regional Growth Plan page 50 Sawridge First Nation | M.D. of Lesser Slave River | Town of Slave Lake January, 2015

provincial highways – either Highway 813 via Athabasca or Highway 754 via Slave Lake.

Research conducted for several socio-economic impact assessments in the M.D. of Opportunity suggest that contractors are interested in basing operations in both Athabasca and Slave Lake. Athabasca does have an advantage over Slave Lake in that it also provides access to oil sands projects in the southern portion of the RMWB. In addition, companies are also looking at establishing a presence in Wabasca-Desmarais.

Two different scenarios were generated for the M.D. of Opportunity representing increasing levels of uncertainty and production volumes. These scenarios are summarized in Figure 2.13 below:

350,000

300,000

250,000

200,000

150,000

100,000

50,000 Bitumen ProductionBitumen(bbl/day)

0 2013 2014 2015 2016 2017 2018 2019 2020 2021 2022 2023

Low Medium

Figure 2.15 Production Forecast in the M.D. of Opportunity By the end of 2013, production volume in the M.D. of Opportunity is estimated to be approximately 60,000 bbl/day. Much of this production will be recovered using cold production techniques such as water or polymer flooding. Under the low growth scenario, production volumes are expected to increase to 130,000 bbl/day by 2016, again driven largely by increases in cold production.

Production under the medium growth scenario is anticipated to increase to a total of 225,000 bbl/day by 2016 and then reach 280,000 bbl/day by the end of the ten year forecast period. This growth is expected to be driven almost entirely by commercially sized in situ projects.

Tri-Council Regional Growth Plan page 51 Sawridge First Nation | M.D. of Lesser Slave River | Town of Slave Lake January, 2015

The Slave Lake Region economy is highly-integrated into the Alberta economy and by extension, the Canadian economy which is heavily trade and export-dependent. Rather than detract from the importance, the environment of global uncertainty increases the need for stable supplies of resources.

2.2.5.1 Primary Trade Area The Slave Lake Region’s primary trade area is estimated to include an area that has a population 22,000 residents. This primary trade area covers communities that are located largely north and northeast of the Town of Slave Lake – encompassed largely by the M.D. of Lesser Slave River, the M.D. of Opportunity and the M.D. of Big Lakes. The Slave Lake Region’s primary trade area is shown in Figure 2.16.

Figure 2.16 Slave Lake Region Primary and Secondary Trade Areas The Slave Lake Region’s primary trade area includes a number of aboriginal peoples either in First Nations or aboriginal communities or within the towns and rural areas themselves, which together account for just under 52% of the population found in the Slave Lake Region’s primary trade area. This segment of the population is growing at a faster rate than the remainder and will play an increasingly important role in the future in the region.

It has been estimated that there are approximately 8,100 households in the primary trade area in 2011, earning an average household income of about $82,100 per year – which is roughly 80% of the Alberta average. The total estimated income for the Slave Lake Region’s primary trade area is estimated at between $650 and $675 million in 2011.

Tri-Council Regional Growth Plan page 52 Sawridge First Nation | M.D. of Lesser Slave River | Town of Slave Lake January, 2015

The total current consumption expenditures of those households within the Slave Lake Region’s primary trade area are estimated at between $475 and $500 million in 2011. The ability of the region to capture those consumption expenditures has been estimated to be less than 50% of the total.

2.2.5.2 Secondary Trade Area The Slave Lake Region’s secondary trade area is estimated to include an additional population of 22,000 residents and encompasses the area as identified in Figure 2.16. The Slave Lake Region’s secondary trade area has been expanded as a result of the completion of the paving of Highway 88 up to Fort Vermillion. Highway 88 now becomes a viable alternative for those travelling north of Fort Vermillion and High Level.

As with Slave Lake Region’s primary trade area, the Region’s secondary trade area includes a number of aboriginal peoples either in First Nations or Metis communities or within the Towns and rural areas themselves. Together the aboriginal peoples account for almost 36% of the population found in the secondary trade area. As discussed earlier, this segment of the population is growing at a faster rate than the remainder and will play an increasingly important role in the future in the region.

It has been estimated that there are approximately 6,200 households in the secondary trade area in 2011, earning an average household income of about $69,800 per year – which is roughly 69% of the Alberta average. The total estimated income for the Slave Lake Region’s secondary trade area is estimated at between $425 and $450 million in 2011.

The total current consumption expenditures of those households within the Slave Lake Region’s primary trade area are estimated at between $310 and $330 million in 2011. The ability of the region to capture those consumption expenditures has been estimated to be in the order of 5% of the total.

2.2.5.3 Total Trade Area The Slave Lake Region’s total trade area is estimated to include an area that has a population of 44,000 residents. The aboriginal component of the Slave Lake Region’s total trade area accounts for almost 44% of the population.

A significant amount of expenditures associated with the Slave Lake Region’s total trade area leaks out to other communities including High Prairie which is located roughly 120 km away, Peace River which is located roughly 245 km away, Grande Prairie located 315 km away and Edmonton which is located 250 km away.

Tri-Council Regional Growth Plan page 53 Sawridge First Nation | M.D. of Lesser Slave River | Town of Slave Lake January, 2015

2.2.5.4 Tourism The tourism sector has become an increasingly important component of the Alberta economy. Over the past five years, tourism related expenditures have approached $6 billion annually. The significant gains experienced by the tourism sector between 2002 and 2007, have moderated somewhat between 2007 and 2012. Various tourism related indicators are shown in Table 2-k.

Table 2—k Change in Tourism Related Indicators: 2002 to 2012 % 2002 to % 2007 2002 2007 2007 2012 to 2012 Air Passenger Volumes (Calgary/ Edmonton) 11,658 18,306 57% 20,318 11% National Park Attendance (Banff, Jasper, Waterton) 7,090 5,757 -19% 5,471 -5% Occupancy Rate 65.2% 73.0% 12% 65.6% -10% Room Rates $113 $127 12% $132 4% Historic/Museum Site Attendance 926 882 -5% 829 -6% Food and Drink Receipts $317 $535 69% $642 20% Accommodation and Food Sector Employment 119 117 -2% 134 14% Average Change 18% 4%

Historically, an important component of the growth of tourism in Alberta has been led by visitation to National Parks and Historical sites. As can be seen in Figure 2-k, that trend appears to be abating. Although the tourism sector continues to expand, it is doing so while visitations to National Parks and Historic sites are declining.

By 2015, it has been estimated that the tourism sector will employ over 140,000 Albertans and generate in excess of $7 billion in expenditures annually. Tourism plays an important role in diversifying both the province’s as well as local economies. The province recognizes the importance of tourism and supports this sector by encouraging new travel destinations; the development of various tourism products and by providing a policy and regulatory foundation that encourages tourism.

The Slave Lake Region contains a number of Provincial Parks and Natural Areas. Lesser Slave Lake Provincial Park is the centre piece of the region. Lesser Slave Lake is the second largest Alberta lake and the largest Alberta lake that is easily accessible by automobile. The Lake is approximately 100 kilometres long and up to 15 kilometres wide. Lesser Slave Lake is known for its excellent fishing, as well as other water-based recreation activities, and for its long beaches and water front campgrounds. The lake’s numerous

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rustic beaches provide a unique opportunity within Alberta. The recreational capacity of Lesser Slave Lake is relatively underutilized. A number of opportunities exist to expand the tourism role of Lesser Slave Lake in the Region including:

 Expanding the Region’s two main boat launches – located in Canyon Creek and in Old Town on the Lesser Slave River  Promoting the incredible views that can be accessed via Flat Top Tower and Martin Mountain Tower  Exploiting the East Shore between the Town of Slave Lake and Gilwood Golf and Country Club by upgrading Beach Road.

In addition, there are a number of other Province Parks and Natural Areas in the Region including Cross Lake Provincial Park, Otter-Orloff Wildlands Provincial Park, the Lawrence Lake Recreation Area, the West Fawcett Lake Recreation Area and the Chain Lakes Recreation Area. Each of these areas would be the centre piece of most Regions in the Province, but remain relatively unknown in the Lesser Slave Region with its abundance of natural amenities.

The Slave Lake Region has a number of annual events that draw tourists into the region. A small selection of these annual events includes the following:

 Anglers Cup – the richest fishing derby in Canada is held in June. The Anglers Cup attracts anglers from all over the Country and last year awarded a total cash prize payout of $145,000 to the 115 teams that entered the event.  Songbird Festival – the Songbird Festival is held in early June at the Boreal Centre for Bird Conservation. Activities include guided hikes, a

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pancake breakfast, workshops, children’s activities as well as fun trail walk/run.  Alberta Open Sandsculpture Competition - the competition is held at Devonshire Beach in the middle of July. In additional to the sand sculpture competition, activities include a beach volleyball tournament as well as a DJ to entertain participants and spectators alike.  Karen Willis Memorial Quad Rally – the rally is held in Smith in early June. The event raises money for Kids with Cancer and the spiral of life cancer support group as well as exposing quad enthusiasts to the trails around the Hamlet of Smith.  The Smith Fall Fair – the fair has been providing wholesome family entertainment at its annual fair for over 30 years. Held the first weekend in September, events include a rodeo, concerts and dance.

Tourism networks that incorporate partnerships between public and private sectors tend to be the most successful. To be successful over the long term, it is necessary to attract a number of participants including local voluntary groups, regional tourism groups (Lesser Slave Lake Regional Tourism), special interest groups, business groups (Chamber of Commerce), local government (the Town of Slave Lake and/or the M.D. of Lesser Slave River), commercial interests and potentially the provincial government.

In recent years, the use of events as a tourist attraction strategy has garnered increased attention, as it has been found that events often generate travel to the region afterwards. Tourism events are also becoming increasingly popular because of the positive impact they have after the event is over. Cultural and eco-tourism are considered to be two of the fastest growing components of the tourism sector.

2.2.6 Employment Projections Labour force projections for the Slave Lake Region are based on expected growth in a number of key industries. The Statistics Canada Census provides labour force data for the region that can be used as a starting point for forecasting labour and non-residential land requirements. As mentioned in Section 2.2.3.3 earlier in the report, 81% (approximately 4,000) of the Town of Slave Lake’s and 74% (approximately 1,600) of the M.D. of Lesser Slave River’s population 15 years of age or older were engaged in the labour force. Of the approximately 5,600 residents in the labour force, approximately 5,400 are actively employed.

The approach used to project employment was to identify those segments of the economy that are impacted by population growth versus those that

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are impacted by the province’s general economic activity. Certain segments of the economy such as health care, educational services and recreation are generally impacted by local population growth. Other segments of the economy such as primary industries are impacted by the province’s general economic activity (GDP). A number of other segments, such as accommodation and food services, construction, manufacturing, real estate, transportation, warehousing and professional, scientific and technical services are impacted by both local population growth and the province’s general economic activity.

The Conference Board of Canada provides long-term projection of GDP on a provincial level. This projection is shown in Figure 2.17.

4.5%

4.0%

3.5%

3.0% Alberta GDP 2.5%

2.0% Annual % Change % Annual 1.5%

1.0%

0.5%

0.0%

Year

Figure 2.17 Projected Annual Change in GDP Source: Conference Board of Canada, Long Term Economic Forecast Adjusted to Reflect Short Term five year forecast. The Conference Board forecast estimates that the Alberta provincial economy will grow as follows:

 4.2% to 2.5% per year between 2013 and 2017;  3.2% to 3.4% between 2018 and 2020;  3.4% to 2.6% between 2020 and 2023;  2.6% between 2023 and 2028  2.6% to 1.9% between 2028 and 2033; and  1.9% between 2033 and 2036.

Tri-Council Regional Growth Plan page 57 Sawridge First Nation | M.D. of Lesser Slave River | Town of Slave Lake January, 2015

Figure 5 shows The Slave Lake Region’s employment projection by sector for the time period 2013 to 2036.

7,000

6,000 Business

Services

105 105

094 094

089 089

087 087

075 075

070 070

052 052

039 039

035 035

021 021

2,080

999 999

979 979

969 969

, 958 958

5,000 2

946 946

931 931

913 913

1 1

1,853 Public Services

726 726

722 722

721 721

720 720

718 718

716 716

716 716 714 714

4,000 714

708 708

703 703

702 702

697 697

689 689

682 682

679 679

675 675

671 671

666 666

659 659 638 638

Retail &

3,000 039

033 033

031 031

030 030

027 027

024 024

022 022 021 021

, Wholesale

013 013

, 005 005

998 998

987 987

977 977

1,007

972 972

967 967

961 961 954 954

945 945 Trade 916 916

2,000

148 148

144 144

142 142

141 141

138 138

135 135 135 135

133 133

125 125

119 119

118 118

112 112

102 102

, ,

093 093

089 089

, ,

084 084 Manufacturing

079 079

072 072

064 064

038 038 ,

, 1

1,133

1 1 1 & Construction

1,000

297 297

296 296

295 295

293 293

292 292 292 292

291 291 290 290

286 286

282 282

281 281

277 277

271 271

265 265

262 262

256 256

252 252

247 247

230 230

, ,

1,300

1 1

1,259

1 1 1 Primary

Figure 2.18 Employment Projection by Sector: Slave Lake Region 2013 to 2036 Figure 2.18 shows the Slave Lake Region’s employment projection by sector for the time period 2013 to 2036, which are based on the population projections provided in Section 2.1.3. The Primary Industries Sector (mining and oil and gas extraction; agriculture, forestry, fishing and hunting) is expected to grow from an estimated 1,230 employees in 2013 to 1,300 employees in 2036, an increase of 7%. The Manufacturing and Construction Sector (manufacturing; construction) is estimated to increase from roughly 1,040 in 2013 to 1,150 employees in 2036, an increase of 13%.

The Retail and Wholesale Trade Sector (retail trade; wholesale trade; transportation and warehousing) is projected to increase from 915 employees in 2013 to 1,040 employees in 2036, an increase of 16%. The Public Services Sector (administrative/waste management; educational services; health care and social assistance; public administration) is forecasted to increase from 640 employees in 2013 to 725 employees in 2036, an increase of 16%.

Tri-Council Regional Growth Plan page 58 Sawridge First Nation | M.D. of Lesser Slave River | Town of Slave Lake January, 2015

The Business Services Sector (accommodation and food services; arts, entertainment and recreation; finance and insurance; information and cultural industries; management of companies and enterprises; other services except public administration; professional, scientific and technical services; real estate and rental and leasing; utilities) is projected to increase from 1,850 employees in 2013 to 2,100 employees in 2036, an increase of 16%.

In total, the employment for all of the sectors is expected to increase from 5,675 employees in 2013 to 6,435 employees in 2036, an increase of 13%.

2.2.7 Non-Residential Land Requirements Non-residential land requirements were prepared in order to obtain an order of magnitude estimate of land requirements. The basic approach used to determine non-residential land requirements is as follows:

 Developed the employment forecasts as presented in the preceding section of the report.  Developed employment patterns by sector. This step aggregated the employment forecasts into the following five sectors: i. Primary Industries Sector (mining and oil and gas extraction; agriculture, forestry, fishing and hunting); ii. Manufacturing and Construction Sector (manufacturing; construction); iii. Retail and Wholesale Trade Sector (retail trade; wholesale trade; transportation and warehousing); iv. Public Services Sector (administrative/waste management; educational services; health care and social assistance; public administration); and v. Business Services Sector (accommodation and food services; arts, entertainment and recreation; finance and insurance; information and cultural industries; management of companies and enterprises; other services except public administration; professional, scientific and technical services; real estate and rental and leasing; utilities).  Allocate the employment forecasts to the land use type utilized – commercial, light industrial, heavy industrial and business parks. The employment projections were allocated to the land use types according to the parameters laid out in Table 2—l.

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Table 2—l Allocation of Employment Projections Allocation to Land In the Light Business Use Types MD Commercial Industrial Parks Other Primary 40% 0% 50% 10% 0% Manufacturing & Construction 30% 0% 60% 10% 0% Retail & Wholesale Trade 0% 75% 0% 25% 0% Public Services 0% 0% 0% 0% 100% Business Services 0% 20% 0% 80% 0%

 Determine employee per square foot (SF/Employee) ratios. Empirical data on SF/Employee ratios show that the average amount of floor space required per employee can vary significantly ranging from 300 to 1,500 square feet of floor space per employee, depending primarily on the type of business. Table 2—m shows a sample of average floor area ratios.

Table 2—m Floor Area Requirements by Type of Business SF/Emp Light Heavy Business Requirements Commercial Industrial Industrial Parks Other Primary 1,000 sf/emp 1,500 sf/emp 500 sf/emp Manufacturing & Construction 500 sf/emp 1,000 sf/emp 1,500 sf/emp 750 sf/emp Retail & Wholesale Trade 1,000 sf/emp 1,500 sf/emp Public Services 500 sf/emp Business Services 500 sf/emp 1,000 sf/emp 300 sf/emp

 Develop floor area ratios for the different types of land uses. The amount of land required for non-residential development is impacted by a number of different factors. One of the more significant factors affecting requirements includes the impact of land use policies relating to the level of development allowed. Three scenarios were developed, one that achieves a floor area ratio for the new development that is the same as the existing (0.6 coverage), and two alternatives that result in a more intensive use of land (0.8 coverage and 1.0 coverage) for the new development. The ratios associated with achieving the coverage identified above are shown in Table 2—n.

Table 2—n Floor Area Ratios for New Non-Residential Development SF/Emp Light Heavy Business Requirements Commercial Industrial Industrial Parks Other Primary 20% 15% 50% Manufacturing & Construction 50% 20% 15% 50% Retail & Wholesale Trade 30% 50% Public Services 50% Business Services 50% 20% 35%

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Three scenarios were examined to analyze the impact of dictating different density requirements. The scenario for the base case is shown in Table 2—o. Two alternative scenarios were examined, one if the Region were to achieve a 10% higher floor area ratio, and the second if the Region were to achieve a 20% higher floor area ratio.

Table 2—o Projected Land Requirements (cumulative acres) for Non- Residential Developments ------Town of Slave Lake------Light Business MD Commercial Industrial Parks Other Total 2013 3.3 2.0 2.8 2.2 0.5 10.7 2014 4.4 2.6 3.6 2.9 0.6 14.1 2015 5.2 3.0 4.3 3.4 0.7 16.7 2016 5.9 3.4 4.8 3.9 0.8 18.8 2017 6.5 3.8 5.3 4.3 0.9 20.7 2018 7.0 4.1 5.8 4.6 1.0 22.6 2019 8.1 4.8 6.7 5.4 1.2 26.2 2020 9.4 5.5 7.7 6.2 1.3 30.1 2021 10.2 5.9 8.4 6.7 1.5 32.7 2022 10.4 6.1 8.6 6.8 1.5 33.4 2023 11.4 6.5 9.2 7.3 1.6 35.7 2024 12.1 7.1 10.0 8.0 1.7 38.9 2025 12.4 7.2 10.3 8.2 1.8 39.9 2026 12.4 7.2 10.3 8.2 1.8 39.9 2027 12.4 7.2 10.3 8.2 1.8 39.9 2028 13.0 7.6 10.7 8.5 1.9 41.6 2029 13.4 7.8 11.1 8.8 1.9 42.9 2030 13.5 7.9 11.2 8.9 1.9 43.3 2031 13.7 8.0 11.4 9.0 2.0 44.1 2032 14.3 8.4 11.9 9.4 2.1 46.1 2033 15.0 8.8 12.4 9.9 2.2 48.3 2034 15.7 9.2 13.0 10.3 2.2 50.4 2035 16.9 9.9 14.0 11.1 2.4 54.3 2036 18.1 10.6 15.0 11.9 2.6 58.2

As can be seen in Table 2—o, approximately 58 acres of non-residential lands are required to meet the projected non-residential land demand to 2036. If the Region were to achieve a 10% higher floor area ratio, then the land requirement would decrease to approximately 54 acres. Likewise, if the Region were to achieve a 20% higher floor area ratio, then the land requirement would decrease to approximately 49 acres. These land requirement projections are based on the Region continuing to operate in the same manner as they have historically.

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2.2.8 Economic Strategies and Policies

2.2.8.1 Promotion of Highway 88 as Alternative Route to the Peace Oil Sands Highway 88 offers an alternative route to the Peace Oil Sands and a possible future alternative to the CANAMEX Trade Corridor route should Highway 58 be extended from Rainbow Lake to the British Columbia border and eventually to Fort Nelson. Traffic volumes on Highway 88 have expanded significantly over the past thirty years, increasing over 400% from 380 daily vehicle movements in 1982 to 1,890 daily vehicle movements in 2012.

2.2.8.2 Staging of Servicing Requirements As discussed earlier, although industrial and commercial serviced land in the Slave Lake Region isn’t overly expensive relative to comparative communities, it is high given the relatively low level of growth experienced in the region over the past ten years. One method of addressing the higher costs might be the staging of servicing requirements to reduce the cost of service lands. The use of a staged servicing approach would require pre- established thresholds or targets to ensure servicing standards are maintained at desired levels. Although the historical trend has been slow to stagnant growth – there seems to be plenty of activity occurring in the broader region, but is currently not translating to study area at same pace. The region needs to incent develop to occur locally to prevent it from locating outside of the region.

2.2.8.3 Off-Site Levies and the Front Ending of Infrastructure As was discussed in section 2.2.4.3, the principle of growth paying for itself is well ingrained within municipal fiscal policies. For those communities that are experiencing strong steady growth, the principle of growth paying for itself doesn’t significantly impact the development process as developers are willing to frontend costs knowing they will recoup their investment in a timely manner.

There are a number of examples of communities that have relaxed the requirement of development paying for itself. For example, in 2004, the town council in Blackfalds approved a five-year moratorium on off-site levies for non-residential developments. Over the next five years, Blackfalds experienced a significant amount of growth, and in 2011, Statistics Canada ranked Blackfalds as one of the fastest growing communities in Alberta and 14th fastest in Canada. Over the past ten year, Blackfalds non-residential assessment percent increase from 12% in 2005 to 37% this past year.

Another example of a municipality relaxing their requirement for front- ending of infrastructure is in the Town of Edson, which allows developments

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that are assessed cumulative levies in excess of $800,000 to defer their levy payments for a period of up to 2 years.

The Town has relaxed its requirements for the last couple of development agreements drafted and entered into with developers allowing the developer the ability to pay off-site levies either when the land sells or when a development permit was applied for on the property.

2.2.8.4 Market to Aboriginal Population As was discussed in Section 2.2.3.2 and in Section’s 2.2.5.1 and 2.2.5.2, the aboriginal population plays a significant role in the Slave Lake Region (24%) as well as in the Primary (52%) and Secondary Trading Areas (36%). In addition to their current important role to the Region, the aboriginal population is growing significantly faster than the rest of the Region and Trading Area. Marketing to the aboriginal population in the area could allow the Region to retain a more significant share of their expenditures.

2.2.8.5 Use of Events to Promote Tourism As was discussed in Section 2.2.5.4, the use of events to promote tourism has garnered increased attention in recent years. A number of municipalities have implemented cultural events to increase tourism in their communities. The City of Grand Junction, has hosted an “Art on the Corner” event each summer for the past 30 years. Over a 100 sculptures utilizing various mediums and styles are displayed.

The organizing committee has the right to purchase several of the artworks each summer, increasing the number of permanent works displayed on a year round basis.

A similar event incorporating Aboriginal artists could be used to attract tourist to the Region. Alberta Tourism Parks and Recreation offers a grant program – the Festivals and Events Tourism Growth Program – which provides up to $40,000 to study the tourism potential associated with establishing a festival.

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2.3 Housing

2.3.1 Background This section presents a summary of housing conditions in the Tri-Council Region, with a focus on the Regional Growth Plan Study Area (the Study Area). The analyses presented draws on data and input from a variety of sources, including: the Government of Alberta, Statistics Canada including the Federal Census, the Town of Slave Lake, Sawridge First Nation, the TriCouncil and key stakeholders, like Area homebuilders and the Lesser Slave Lake Regional Housing Authority (LSLRHA). Census data is presented for the entire MD of Lesser Slave Lake (the MD), and cannot typically be disaggregated; in general the data is felt to be representative of the Study Area’s rural component.

The effects of the 2011 fire on the Study Area’s housing conditions are addressed in a specific subsection of the Background, as well as in a specific subsection of the Housing Policies.

2.3.1.1 Existing Stock According to the 2011 Federal Census (the latest information available) there are approximately 3,440 housing units within the Tri-Council Region. The mix of housing types varies depending on the jurisdiction, but is typical to the respective category of host communities:

 Slave Lake, with 2,295 units, is predominated by single detached houses as well as a number of mobile homes, semi-detached/duplex houses and apartments  The MD with 1,115 units – the majority of which are single detached houses with the remainder being moveable dwellings  The Sawridge 150 G and H reserves, located on the east and west sides of town respectively, with 32 units – comprised of single detached houses and an apartment building.

Table 2—p presents a summary of the Tri-Council Region’s housing stock, by type.

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Table 2—p Tri-Council Region’s Housing Stock, by Type Slave Lake MD Lesser Slave Sawridge # (type as % # (type as % # (type as % Housing Stock Units of total): Units of total): Units of total): Housing Mix Single Detached 1305 57 840 75 16 50 Semi-Detached / Row 260 11 5 0.5 - - Moveable Dwelling 430 19 265 24 - - Apartment 300 13 - - 16 50 Total 2,295 100 1,110 100 32 100 Source: 2011 Statistics Canada Federal Census, Discussion with Sawridge First Nation

Table 2—q presents a summary of indicators regarding the housing stock in Slave Lake, the MD and other, comparator communities.

Table 2—q Housing Stock – Region and Comparator Communities Comparator Comparator Communities Communities MD MD Atha- Housing Stock Slave Atha- White Lesser Oppor- basca Indicator Lake Hinton Edson basca court Slave tunity County Population 6,780 9,640 8,475 2,990 9,605 2,930 3,074 7,662 2006-11 Total Growth Rate (%) 1.2% -1.0% 4.7% 15.9% 7.1% 3.9% 8.0% 1.2% # Occupied Dwellings 2,295 3785 3,400 1,175 3,635 1,115 965 2,965 Average Occupancy (pop / 3.0 2.5 2.5 2.5 2.6 2.6 3.2 2.6 dwelling) Density (Dwellings / sq. km) 162 112 115 67 139 0.11 0.03 0.48 Housing Mix (type as % of total): Single Detached 57% 49% 60% 61% 53% 75% 55% 83% Semi-Detached / Row 11% 14% 8% 13% 12% 0.5% 2% - Moveable Dwelling 19% 24% 12% 9% 20% 24% 39% 17% Apartment 13% 13% 20% 17% 15% 0.5% 4% - % of Dwellings > 20 years old1 58% 71% 73% 62% 52% 50% 42% 63% % of Dwellings Requiring Major 15% 8% 10% 7% 5% 16% 31% 12% Repair1 Notes: 1Based on 2006 data; remainder based on 2011 data. Source: 2006, 2011 Statistics Canada Federal Census A number of observations can be made regarding the housing stock in Slave Lake as compared with other, similar-sized towns with resource-based economies:  A higher average occupancy (population per dwelling) at 3.0, than other towns, which average between 2.5 and 2.6  Higher density in terms of units per square kilometre of municipal land base compared with other towns o The proportion of single family houses (57%) lower than that in Athabasca and Edson (60-61%) but higher than in Hinton and Whitecourt (49-53%)

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o A sizeable relative proportion of manufactured homes – higher than some communities but in line with Hinton and Whitecourt o Lower relative proportion of ‘density ownership’ (semi- detached and row) houses - at 11% below most other comparators o Lower relative proportion of apartments – at 13% equal to Hinton but less than other comparators  Housing stock that is younger, but in slightly relatively poorer condition (requiring repair) when contrasted with comparator towns.

Observations regarding the housing stock in the MD as compared with the Town and other municipal districts and counties in the area include:

 Lower occupancy, but similar age and condition of dwellings compared to the Town  Occupancy and density rates and average condition above that of MD Opportunity and below that of Athabasca County  Higher percentage of single family dwellings than MD Opportunity, but lower than Athabasca County; the inverse applies to manufactured homes.

2.3.1.2 Housing Market House sale prices in Slave Lake have fluctuated over the past fifteen years, linked to the high and low activity levels typical of resource-based communities. For example, average dwelling values as reported on the Federal Census indicate an increase in value of 80% between 2001 and 2006 in the Town. This increase is in line with that experienced in other comparator communities during this same period, which ranged between 65% and 100% depending on the community. Between 2007 and 2011, prices in the Town were relatively stable (around $330,000) and roughly 15% lower than the average price in Edmonton.

Post-fire, the average house prices saw a sharp increase, going from $340,800 for single detached houses in 2011 to $401,000 as of the summer 2013. Even with the 2013 increase, the average sale price for single detached houses in Slave Lake track closely with Whitecourt and Hinton, while the average prices in Edson and Athabasca have ranged consistently lower (between 14 and 23%, respectively). With an average sales price above $400,000, Slave Lake is approaching the average sale price in Edmonton. Figure 2.19 shows house sales price trends over the last seven years.

Tri-Council Regional Growth Plan page 66 Sawridge First Nation | M.D. of Lesser Slave River | Town of Slave Lake January, 2015

$450,000

Edmonton $400,000 Slave Lake Whitecourt Hinton $350,000

Edson $300,000 Athabasca

$250,000

Average Single Family Dwelling Sales Price Sales Dwelling Family Single Average $200,000 2007 2008 2009 2010 2011 2012 2013 YTD

Figure 2.19 House Sales Price Trend – Slave Lake and Comparators Source: Alberta West Realtors Association and the Edmonton Real Estate Board (MLS)

Observations related to housing trends in the above figure include:

 The average house price in Slave Lake has increased substantially over the past decade, and by 20% between 2007 and 2013.  Slave Lake is not unique in this upswing - this trend has been similarly experienced across comparator communities.  The average price in Slave Lake has tracked closely with those in Hinton and Whitecourt.

Data on average house prices in the MD is not as readily available, but a review of census information and discussions with area realtors and municipal administration suggest that:

 The average house value (as recorded in the Federal Census) increased by 150% in the MD % between 2001 and 2006. This compares to between 45% and 70% in MD Opportunity and Athabasca County.  House values vary substantially across the MD, ranging from $180,000 in hamlets like Smith to over $400,000 in lake front developments close to Slave Lake.

In terms of rental costs, Slave Lake has experienced rates well above other comparator communities. Over the past six years, the average 2-bedroom rent in Slave Lake has been roughly 20% above the average of its comparator group, and, until the fire, in-line with the rates in Edmonton. The town has consistently been one of the higher cost rental markets in Alberta (AMA 1997-2012). Figure 2.20 shows the rental rate trend versus comparator communities.

Tri-Council Regional Growth Plan page 67 Sawridge First Nation | M.D. of Lesser Slave River | Town of Slave Lake January, 2015

$1,150 Slave Lake

$1,100

Edmonton $1,050

$1,000

$950 Edson Bedroom Rental Rates Rates Rental Bedroom

- Hinton $900 Athabasca

$850

Average Two Average Whitecourt

$800

$750 2007 2008 2009 2010 2011 2012 Figure 2.20 Apartment Rental Rate Trends – Slave Lake and Comparators Source: AMA Rental Market and Vacancy Survey; Canadian Mortgage and Housing Corporation

The vacancy rate, another key indicator of the rental market, is highly variable in resource-based communities, reflective of the boom/bust nature of their economies. Figure 2.21 shows the vacancy rate trends of (all apartment types) in Slave Lake and comparator communities.

While Edmonton’s average vacancy rate has remained relatively steady (and tight) at between 1.5% and 4.5% over the past six years, vacancy rates in resource economy-based towns have fluctuated greatly, and for the most part, trended similarly:

 Limited (and in some cases, essentially zero) vacancy during the period of strong economic growth in 2007.  Substantial spike upwards in most communities during the economic slowdown period (2009-10).  Readjustment downwards in the 2011-12 timeframe, during the period of renewed economic activity in the province.

The vacancy rate trend in Slave Lake mirrors that of the comparator group, but is more exaggerated in its highs, as seen during the 2009 period of economic slowdown1. It is also slightly more extreme in the lows, reaching essentially 0% during in 2011, and 0.5% in 2012, the latest data available. In

1 Vacancy in 2009 may have also been affected by a large multi-family condominium project available for occupancy around that period, with resultant increase in the secondary rental market.

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terms of fluctuation from the average, the standard deviation of vacancy in Slave Lake is double that of its comparator communities.

With a vacancy rate of between 3% and 5% required for a healthy rental market, the existing rate in Slave Lake represents an extremely tight market, limiting availability and resulting in rent increases. This situation has been influenced by the 2011 fire.

18.0%

16.0%

14.0%

12.0%

10.0%

8.0% Athabasca

6.0% Hinton

4.0%

Edmonton Overall Vacancy Rate (All Apartment Types) Apartment (All Rate Vacancy Overall 2.0% Edson Whitecourt 0.0% Slave Lake 2007 2008 2009 2010 2011 2012

Figure 2.21 Apartment Vacancy Rate Trends – Slave Lake and Comparators Source: AMA Rental Market and Vacancy Survey; Canadian Mortgage and Housing Corporation

Discussion with the largest market rental management company in Slave Lake indicates that a major contributing factor to vacancy and rental rates historically has been the ebb and flow of seasonal-based work, with:

 High demand, including some block booking by companies and full occupancy during the winter season, driven by forestry and oil and gas projects.  High vacancy (up to 20%) during summer months.

The high level of fluctuation has traditionally made Slave Lake a challenging property management market, whereby owners have had to repeatedly cycle between offering subsidies to managing waiting lists over the course of each year. Hesitance by property management firms in investing further in rental stock in Slave Lake historically is likely influenced by the pattern of vacancies reaching in the 20% range during slow seasons.

The fluctuation in rental demand in Whitecourt and Edson (ranging between 0% and 12%) have tended to trend similarly with Slave Lake, although not to

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the same degree. Hinton and Athabasca have seen more stable demand, staying within the 4% to 10% range, likely influenced by stability of the mill operations in these communities.

2.3.1.3 Developer and Builder Market Historically, the RGP Study Area has been host to between one and three locally-based land developers, and around five local home building companies. There is occasional cross-over whereby a developer will also oversee housing construction and a house-builder will include land development within their portfolio. Occasionally firms from outside the region participate in the market, but the residential market has been predominantly serviced by local firms. Within the Town, the long-term historical development pace has been limited, roughly in the range of 5 serviced lots per year available for building.

Linked to new land development trends, housing starts have fluctuated over time. Historically, starts in the Town were dominated by single family dwellings, which between 2001 and 2011 averaged 17 per year. Beginning in 2005, multifamily starts increased, and between 2005 and 2011, represented nearly three-quarters of all starts on an annual average basis. The increase in multi-family projects was driven by increasing housing costs experienced in the Town and elsewhere, during the period of strong economic growth.

In terms of construction costs, discussions with builders indicate they do not typically monitor costs on a square footage basis. Perspectives on residential construction costs vary. Many opinions gathered through stakeholder meetings suggest the region has historically been a high-cost area (not considering effects from the 2011 fire), while others suggest costs being comparable to other regions located two-to-three hours from Edmonton, and in some cases, only slightly higher than levels experienced in Edmonton.

Similar to other resource-based communities, competition with industry for construction trades, as well as equipment associated with installation of services, results in pricing and availability pressures. Table 2—r presents a high-level estimation of development activity and costs in Slave Lake and comparator communities.

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Table 2—r Lot and House Development Activity and Costs – Slave Lake and Comparator Communities Average Annual Basis Development Activity Slave Lake Hinton Edson # Developments / Projects 3 4 2 # Lots Developed 5 110 15 Average Lot Sales Price 80,000 155,000 80,000 Lot Cost / Frontage Foot 1,600 3,400 1,500 New Home Costs Starter 340,000 N/A 380,000 Mid-Range 450,000 450,000 440,000 Duplex / Townhouse 300,000 330,000 430,000 Notes and Assumptions: Results reflect small sample sizes, recent timeframes (roughly past 5 years) and high-level estimates, and therefore should be interpreted as indicative, rather than conclusive, in nature. Home costs reflect a sample house of approx. 1,800-2,000 ft2 with finished basement; lot sizes 5,000 – 6,000 ft2 (33 to 50 ft width) range. Multi-family represent approximately 30-50% of developed units. Source: Discussions with developers, builders and municipal representatives. Compared to available data, Slave Lake is in-line with from comparator communities in terms of development pace and costs:

 The Town tracks closely with Edson in terms of annual average activity including subdivisions, lot developments and lot prices  Hinton has substantially higher lots developed on an annual basis and lot values double that of Slave Lake and Edson  The value of starter homes and duplexes/townhouses in Slave Lake are lower than the other communities (starter homes are essentially unavailable in Hinton); the value of mid-range homes track very closely across the three communities

2.3.1.4 Effects of the Fire on the Housing Market According to available statistics and discussions with key respondents, the 2011 fire had a number of effects on the Tri-Council Region’s housing stock and markets:

 503 housing units in the Town were destroyed including: o 333 single family o 32 medium-density (duplex/condominium) o 138 high-density, including apartments and manors  56 units lost in the MD

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 Shortage of housing, resulting in 260 emergency housing units brought in by the Alberta Emergency Management Agency of the GOA. This housing was first made available to affected residents, and was then extended to provide housing for essential service employees working in the town, as well as the general public, as space became available.  Immediate take-up of available apartments and rental houses in Slave Lake resulted in an essentially 0% vacancy rate and waiting lists  A slowdown in market activity – for example, the number of single family units sold decreased by 17% in 2012 compared to the 2007- 10 average, likely related to limited supply as well as uncertainty regarding the fire’s effects on town fortunes and market values  The five existing builders in the Town increased their activity levels and worked extra time to help rebuild affected residences. A number of house builders from outside the region also entered the market after the fire - two of which left shortly after and two more terminated their projects after financial distress, while another two builders remained and finished all of their developments. Many builders experienced a substantial increase in build costs and high levels of demand through the reconstruction period – indicating a need to reduce pace once reconstruction is complete. Residential reconstruction is on track to be completed in the next one to two years.  Of the majority of residents that chose to re-build in the community, many took advantage of the opportunity and insurance coverage to increase either size or finished quality compared to their previous residence - as a result the quality of the housing stock in Slave Lake has seen a relative improvement. According to the Town’s planning department, the average home permit value has increased post-fire (Skrynyk, pers. comm. 2013).  A number of affected home owners have decided to either purchase another property or leave the community, resulting in available lots interspersed throughout the town site. Of the 79 single family and duplex affected lots that were vacant in the recovery zone as of November 2012, a good number remain, either for sale by owner or by investors or home builders – and represent opportunities for new infill development.  The fire-affected housing stock is on track to be rebuilt. Due to some new apartment projects post-fire, the net apartment stock in the Town is on pace to exceed the pre-fire level.  Compared with pre-fire inventory, as of September 2013 the Town’s housing stock remained short by about 55 units. This is in part due to the 128 new apartment units brought on outside fire reconstruction.

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Table 2—s shows the estimated remaining backlog for residential fire reconstruction.

Table 2—s Fire Reconstruction – Residential Backlog New Units Units Constructed Deficit (-ve) Estimated Time Housing Lost in (as of Sep / Remaining to Unit Type Fire 2013) Surplus (+) Satisfy Backlog Single Family 333 220 -113 1.5 – 2 years Medium Density 32 17 -15 2 years (Duplex/Row) High Density 138 210 72 N/A (Apartment/Manor) Total 503 447 -56 Notes: Time to satisfy backlog based on trend to-date, adjusted downward for less builders and slowdown. Source: Town of Slave Lake and Nichols Applied Management When the temporary (emergency) housing is removed, the exact timing of which remains uncertain2, a number of residents will be turning to the housing market. According to the LSLRHA, who is overseeing the housing units, the units are currently approximately 50% occupied, with tenants either finding alternative accommodation (including reconstruction of their homes) or in a limited case, relocating out of the community. As of October 2013 and based on the results from the Authority’s most recent tenant survey, resident intentions upon removal of the housing suggest:  115 of the estimated 130 tenants (88%) intend to remain in Slave Lake. Of those: o 70 (54%) intend to rent o 17 (35%) intend to purchase o 10 (8%) are rebuilding  15 tenants (12%) intend on leaving the community.

The 10 residents rebuilding are included in the 113 single family dwelling deficit in Table 2—s. The 17 residents intending to purchase likely represent additional demand above that of the estimated backlog. The 70 residents intending to rent align with the net gain in apartments, however this does not signify that sufficient rental stock is currently available:

2 The Town of Slave Lake Council submitted a request in January 2014 to the Alberta Housing Ministry to maintain some of temporary units in Slave Lake until June 2016.

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 As of early 2014 the rental market is extremely tight, with minimal units available  Some residents in market rental housing are homeowners awaiting rebuilds and who will vacate the units upon completion of their homes  The resultant effect should be a freeing-up of apartment units for temporary housing residents; however timing may not align in the short term

The cost of housing in Slave Lake increased after the fire – although determining the exact effect from other factors is challenging, as housing costs have increased in other, unaffected communities as well. Table 2—t presents a summary of changes to housing costs pre/post fire.

Table 2—t Change in Housing Costs – Pre/Post Fire Rental Rate Sales Price Community (2-Bdrm Average) (Single Detached Average) % 2013 % 2010 2012 Change 2010 YTD Change Slave Lake 998 1130 13% 323,845 401,349 24% Comparators: Hinton 888 916 3% 336,411 346,200 15% Edson 895 933 4% 277,756 316,447 14% Athabasca 874 904 3% 263,865 310,820 18% Whitecourt 850 907 7% 331,931 389,513 17% Notes: Latest data available (2012 rental survey, 2013 August House Sales) Source: AMA Rental Market and Vacancy Survey, Alberta West Realtors Association (MLS) It is important to note that while overall costs have increased in Slave Lake, the entirety of these increases is not solely due to the fire. Costs in unaffected communities also increased over the same timeframe. For example, between 2010 and 2013, residential housing construction prices including land and dwelling have increased across the province by 4% respectively. That said, while the relationship is not linear, a good portion of the cost increase differential between Slave Lake and other comparator communities is likely attributable to the effect of the 2011 fire.

Discussions with RGP Study Area’s homebuilders indicate that while some companies experienced sharp increases in construction costs, primarily linked to availability of sub-trades, others only experienced marginal increases. As of 2013, respondents are seeing sub-trade costs declining; however not to the level they were pre-fire. Other costs, like concrete, have increased and are not expected to decline.

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The housing market, including lot and home prices, also reflects ‘noise’ created by the effects of the fire:

 Expectations around values have increased, in part due to speculation and partly due to upgrades  Prices are slowly adjusting as expectations normalize

In general, respondents feel that reconstruction efforts and the associated ‘noise’ created by the fire on the function of the housing market are likely to disappear over the next two years.

2.3.1.5 Affordability The affordability of housing in the RGP Study Area depends on a number of factors, including income levels, family/household compositions and tenure, including timing of purchase.

In terms of ownership, purchasing a house in the area is affordable for couple-based households. The monthly carrying cost of an average house accounts for roughly 23% of the pre-tax monthly household income, below the 30% standard used by financial institutions and the Canadian Mortgage and Housing Corporation (CMHC) as a standard of affordability.

Ownership at existing prices is not attainable for all community members. For example, the implied down payment is $40,000, which would challenge low income households and/or first-time home purchasers without existing equity. For single-earner households (lone parent and single persons) in the RGP Study Area, home ownership with a minimum down payment implies roughly 69% to 74% of monthly household income going to shelter costs, well above the 32% standard threshold. Table 2—u shows ownership affordability by household type.

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Table 2—u Housing Ownership Affordability Affordability of Home Purchasing Cost of Home Ownership Slave Lake MD Lesser Slave Lake Average Purchase Price $401,300 $322,500 Less Down payment $40,130 $32,250 Mortgaged Amount $361,170 $290,250 Total Monthly Housing Costs $2,230 $1,680 Lone Lone Couple Parent Single Couple Parent Single Household Income -Based -Based Person -Based -Based Person Median Annual Income $114,978 $37,562 36,461 $86,583 $27,337 29,389 Gross Monthly Income $9,582 $3,130 3,038 $7,215 $2,278 2,449 Total Monthly Housing Cost as % of Income 23% 71% 73% 23% 74% 69% Notes: Latest data available (2012 rental survey, 2013 August House Sales), 2011 taxfiler data adjusted to 2013. Assumptions: 25 year mortgage, 10% down payment, 3.5% interest rate, biweekly, average property taxes and utility costs. Source: AMA Rental Market and Vacancy Survey and Utility/Property Tax Data, Alberta West Realtors Association (MLS), TD Canada Trust, Statistics Canada.

Affordable rental living is more accessible than ownership in the RGP Study Area, but is not equal across income groups. As indicated in Table 2—v, average cost of rental housing represents 14% of median monthly household incomes for couples. Rental affordability for single-earner households is more of a challenge, with single-person households seeing on average 37%, and lone-parents an average of 42% of income going towards monthly shelter costs. Affordability for these two household types is above, but closer to, the desired standard.

Table 2—v Rental Housing Affordability – Slave Lake

Household Type

Cost of Rental Couple-Based Lone Parent-Based Single Person Total Monthly Housing Cost $1,310 $1,310 $1,120 Median Annual Income $114,980 $37,560 $36,460 Gross Monthly Income $9,580 $3,130 $3,040 Average Rent as % of 14% 42% 37% Monthly Income Notes: Town of Slake Lake, 2012 rental data (latest available), 2011 taxfiler data adjusted to 2013, average utility costs. Source: AMA Rental Market and Vacancy Survey, Statistics Canada

The affordability challenges faced in Slave Lake are not unique, but are slightly more pronounced than in other, comparator communities.

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As indicated in Section 2.3.1.5, the relative cost of housing in the area (purchase and rental) is in the upper end of its comparator group range, and consistent with levels in Edmonton. Rental rates are higher than in comparator communities. Incomes in the RGP Study Area on average are in- line with comparator communities, and in the case of couple families, 5% higher in Slave Lake than in Edmonton. Higher incomes help to offset, to some degree, the higher housing costs.

Figure 2.22 shows a comparison of ownership and rental housing affordability by household type, between the RGP Study Area and comparator communities. Of note:

 Slave Lake and the MD are in-line with each other, and trend slightly above housing affordability levels in other communities  The average couple-based household does not face an affordability challenge in any of the sample communities  Home ownership exceeds the affordability standard in every community; this is a factor of the implied scenario of a purchase at existing prices with a minimal down payment. This likely represents a conservative (high) picture of ownership affordability, as many owners purchase starter dwellings at lower prices or invest more equity if selling an existing home.

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100% Couple 80%

60% 32% - Benchmark for Monthly Housing Cost 40%

20%

0% Edson Athabasca Whitecourt Hinton Slave Lake MD LS River Edmonton

home ownership apartment rental 100% Lone-Parent 80%

60%

40%

20%

0% Edson Athabasca Whitecourt Hinton Slave Lake MD LS River Edmonton home ownership apartment rental

100% Single 80%

60%

40%

20%

0% Edson Athabasca Whitecourt Hinton Slave Lake MD LS River Edmonton home ownership apartment rental

Figure 2.22 Housing Affordability – By Community, Family and Housing Type Notes: Latest data available (2012 rental survey, 2013 August House Sales), 2011 taxfiler data adjusted to 2013. Assumptions: 25 year mortgage, 10% down payment, 3.5% interest rate, biweekly, average property taxes and utility costs. Source: AMA Rental Market and Vacancy Survey and Utility/Property Tax Data, Alberta West Realtors Association (MLS), CMHC, TD Canada Trust, Statistics Canada.  Rental affordability for single-earning households is more of a challenge in Slave Lake, as it is the only community to exceed the affordability standard. This is due to a combination of higher rental rates and income levels at the lower end of the comparator range. The analysis likely understates the full implications of the fire-related pressure on rents, as it is based on 2012 market-wide rental data - the most-recent available.

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Affordability for Sawridge First Nations members depends on their living situation. For those living off reserve, they face the same pricing challenges as non-Aboriginal residents. The housing situation of members living on reserve, who represent the majority of members living in the RGP Study Area, is influenced by the dynamics of housing programs offered by the First Nation, and funded through Aboriginal Affairs and Northern Development Canada (AANDC). The First Nation’s existing housing stock, consisting of 16 apartment units and 16 houses, is available to members on a subsidized basis (McKinney, pers. comm. 2013).

2.3.1.6 Supply / Demand Situation

The affordability analysis in the previous section is based on ‘typical households’, including average housing costs and median income levels. The experience for community members varies widely, depending on their individual circumstances.

The average incomes required to meet the affordability standard implied by the red dashed lines in Figure 4.3-4 for Slave Lake are:

 $49,200 yearly, pre-tax income required to afford the average 2- bedroom rent (couples and single-parent based rental households)  $42,000 for the average 1-bedroom apartment (for single persons)  $84,000 to afford the average $ 400,000 house

Table 2—w indicates income levels for Slave Lake households, presented in quartiles. As shown, the median household income (50th percentile) is $91,780. This in effect signifies that the current average price is within reach of more than half of the households in the town based on their income levels, even as first-time homebuyers. Currently the home ownership rate in Slave Lake is 74% of all households (of which 25% of all households are mortgage free). In terms of renter households (which represent 26% of all households in town), three-quarters of households can afford the average rent.

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Table 2—w Slave Lake Household Income Levels % of Households Annual Household Income Quartile Represented Level at Cut-Off 1st 25% $49,107 2nd 50% $91,780 3rd 75% $115,498 4th 100% > $115,498 Notes: Quartiles represent the total number of households divided into 4 equal groupings (573 each) in order of income levels. Annual household incomes represent the value at each cut-off point for the groupings. Source: Statistics Canada2011 Household Survey, Nichols Applied Management

While the majority of Area residents do not face an affordability challenge, a certain subsection does. An area of key concern in any community is the households that face significant affordability challenges, particularly those that find themselves in core housing need. Often those in core housing need (CHN3) are more vulnerable members of the community, including low- income, single parent, aboriginal, new immigrant or refugee, disabled, or any combination of the above.

Table 2—x and Table 2—y present an estimate of housing need in Slave Lake. It represents an attempt to disaggregate the existing housing situation by those in need versus those not in need. The analysis includes estimates based on household type, housing tenure and type. The focus is on Slave Lake, as urban centres tend to have higher incidences of core housing need, due to higher housing costs and gravitation of residents to available services. As well, data availability regarding CHN in rural settings can be difficult to obtain.

3 CHN, defined by CMHC refers to housing falling below at least one of the adequacy, suitability, or affordability standards and requiring 30% or more of its total pre-tax income to pay the median rent of alternative, acceptable local housing meeting these standards.

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Table 2—x Slave Lake - Current Housing Needs by Tenure and Family Type As % of Total Slave Lake # Households Households

Total Households 2,290 100%

Owners 1,705 74% Mortgage Free 575 25% < 30% Household Income for Shelter 910 40% > 30% Household Income for Shelter 220 10% of which, in Core Housing Need: 50-110 4% Couples 10-30 1% Lone Parent 10-30 1% Non-Family 30-50 2%

Renters 585 26% Households in Subsidized Housing 110 5% < 30% Household Income for Shelter 250 11% > 30% Household Income for Shelter 230 10% of which, in Core Housing Need: 90-150 5% Couples 20-40 1% Lone Parent 10-30 1% Non-Family 60-80 3% Notes: Housing expenditure data direct from 2011 Household Survey. Core housing need data unavailable at Town level; estimates derived from comparable Alberta communities at the Census Agglomeration level (closest geographical size available at 10,000 residents) and adjusted to align with Slave Lake-specific household characteristics. Source: Statistics Canada2011 Household Survey, CMHC Housing in Canada Online (HICO) 2006, and Nichols Applied Management.

As indicated in Table 2—w, 4% (or in the range of 50 to 110) owner-based households are estimated to be in core housing need. The breakdown by family type within this group is estimated to be in the range of:

 10 to 30 couple-based households  10 to 30 lone-parent and 30 to 50 single person-based households

Another subset of the owner population, representing approximately 6% of all households, pays more than 30% of household income towards shelter. Not all of these households are ‘in need’, as some are paying more by choice. It is likely safe to assume that roughly half of those households are paying more than they would like for what they are getting, and can be considered as part of the bigger housing need situation.

In terms of renter-based households, 5%, or 90 to 150 households are estimated to be in core housing need, including:

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 20 to 40 couple-based households  10 to 30 lone-parent based households  60 to 80 single person-based households

In addition, roughly half of an additional 10% of households paying more than 30% of monthly income towards shelter are likely doing so out of lack of choice, and therefore can also be considered to have housing above the desired affordable level.

Approximately 110 households (5% of total) in Slave Lake are in subsidized housing, with the majority in units managed by the LSLRHA.

Table 2—y summarizes unmet need in terms of attainable housing in Slave Lake. Based on the mid-points of estimate ranges, housing need in terms of priority include:

 Approximately 120 renter-based households in core housing need. These households are considered to be of high priority, as they do not own their housing, are not building equity through ownership, and have less overall control in their housing situation, which can shift substantially in any given month or year.  Roughly 60 households pay for housing ‘above affordable levels’. These households do not face the same degree of challenge as those in CHN, but do see a higher percentage of their monthly income go towards covering the cost of shelter, and face the same rental uncertainties.  An estimated 80 owner-based households are in core housing need. These households are considered to be of lower priority as they have more control over their housing situation and are building equity, but nonetheless meet the CHN conditions.  An additional 40 or so owner-based households are ‘above affordable levels’, as they see a higher percentage of their monthly income go towards covering shelter costs. These households represent the lowest priority in terms of addressing immediate needs, but are still considered to represent a type of need to be addressed – through attainable market ownership housing.

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Table 2—y Unmet Demand by Degree of Need Current Unmet Need Above Summary of Housing In Core Affordable Need Housing Need Level Total Units

Ownership Properties: # Households 80 40 120 Ownership Unit Types Required: 1 bedroom 20 10 30 2 bedroom 40 20 60 3 bedroom+ 20 10 30

Rental Properties: # Households 120 60 180 Rental Unit Types Required: 1 bedroom 40 20 60 2 bedroom 60 30 90 3 bedroom+ 20 10 30

Total (Ownership + Rental): # Households 200 100 300 Unit Types Required: 1 bedroom 60 30 90 2 bedroom 100 50 150 3 bedroom+ 40 20 60 Notes: Households considered ‘Above Affordable Levels’ are estimated to be 50% of households spending > 30% on shelter. Unit size demand estimates derived using average family size by household type and assumed # rooms required to accommodate. Source: Statistics Canada2011 Household Survey, CMHC Housing in Canada Online (HICO) 2006 and Nichols Applied Management.

Based on the estimates presented in Table 2—y, as of early 2014, Slave Lake has a deficit of 180 affordable rental housing units, and 120 affordable ownership units, for a total of 300 units. For the rental households in core housing need, a sizeable portion likely requires non-market attainable housing options. For rental households facing ‘above affordable levels’ and for ownership households in need, the required solution likely involves ‘attainable market housing’. This type of housing typically involves one-time subsidies or incentives resulting in purchase price or rental rates attainable for residents with roughly 80-100% of median income levels.

Housing need estimates are not available for the MD to the same degree of detail. In general, the housing stock is slightly newer than in Slave Lake (pre- fire), but 20% of dwellings require major repair, as compared to 10% in town. The housing stock within the rural portion of the Area, including along the south shore and adjacent to Slave Lake, can be generally characterized as in good condition. Certain households are assumed to also face core housing need, but to a lesser degree than in Slave Lake.

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Regarding supply on reserve, according to the Sawridge First Nation, the existing housing stock is in good shape. There is a short waiting list for houses, but those households have been housed in apartment units in the interim. Constructing new stock has posed some challenges, including sourcing appropriate contractors and build costs, including modular homes. A lack of available, suitable land supply for new units also poses a challenge. The existing housing supply may be having an effect, albeit limited, on potential movement of members back to Slave Lake (McKinney, pers. comm. 2013).

2.3.1.7 Inter-Relation Between Housing and Other Factors

The estimated needs presented in the above table represent different types challenges for Area communities.

Households in core housing need represent challenging living conditions for residents, who often comprise the neediest and most vulnerable members of the community. As communities that care about all members, this represents an undesirable situation.

 Implications to communities if not addressed - an exacerbation of social issues, linked to economic instability. Stable, adequate and affordable housing is the cornerstone of a household’s ability to achieve economic and social stability.

Households facing unaffordable levels of cost are comprised of a variety of demographic and living situations, including younger and/or newer residents and first-time home buyers. These households are an important component of a community’s overall composition, and often represent the ‘future lifeblood’ of a centre. They also tend to be more mobile and may have lower attachment levels to a community.

 Implications to communities if not addressed - an outmigration of current residents, including the younger generation, and challenges in attracting new residents, with ripple effects to employee attraction/retention and local business growth, municipal tax revenues and community vitality.

2.3.1.8 Outlook

Population growth will continue to place demands for new housing stock in the Area, the degree to which depends on the level of growth achieved. Predicting future need is challenging, as the dynamics between housing, economic development and community growth are interlinked:

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 availability and cost of housing affects in-migration of new, and retention of existing residents  economic development resulting in employment expansion puts pressure on existing stock and drives new housing development  a lack of attainable housing options can slow economic expansion, if not addressed in a timely fashion; it can also result in housing incentives, with inflationary effects to the entire market  the market tends to be dynamic – the introduction of new housing can result in ripple effects in pricing and availability of existing stock

Table 2—z and Table 2—aa outline future housing requirements based on potential growth scenarios of the Area’s population. Future demand by housing type is assumed to track closely with existing levels of need. The forecasts assume, as is the case presently, that attainable (subsidized and market-based) housing is suited for location within Slave Lake, while housing in the rural area of the Area remains market-based ownership housing.

Depending on the scenario, future growth implies additional units of affordable and market housing. Drawing on the medium scenario which estimates 1,500 new residents to the Area, the housing demand within the next ten years could be:

 500 market and 30 market attainable housing units for ownership  120 rental units, including 60 market, 40 market-affordable and 20 subsidized (social) housing units  Two-thirds of the ownership housing and 100% of the rental housing is assumed to be in Slave Lake

The breakdown of market attainable housing is based on the assumption that relative existing levels of (unmet) need will continue to apply to the Area’s new residents. It is intended to provide guidance towards the types, amounts and target pricing of new housing to bring forward. If the Area’s future housing mix matches the forecast, all things remaining equal, the majority of new residents would be in affordable and appropriate housing. This in turn would hopefully mean easier competition for attracting and retaining residents. If the future housing mix is developed along the lines of the existing stock, Slave Lake may or may not be able to attract the projected residents, depending on wage trends, levels of employment and the degree of competition posed by other communities in the province.

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Table 2—z Housing Need Outlook by Growth Scenario – Slave Lake Current Households Total Units by Market Type Population By Tenure Ownership Rental / New Market Market Non-Market Total Timeframe Year Residents Owner Rental Market Attainable Market Attainable (Subsidized) Units Current Supply & 2011 6,780 1,705 585 1,705 - 225 260 100 2,290 Unmet Demand 120 60 120 300

Future Requirements

Base Scenario 3 years 2016 250 80 40 80 10 20 10 5 125 5 years 2018 330 110 50 110 10 20 10 10 160 10 years 2023 490 160 80 160 20 30 20 10 240 15 years 2028 560 180 90 180 20 40 20 10 270 23 years 2036 520 170 80 170 20 30 20 10 250

Medium Scenario 3 years 2016 380 120 60 120 10 20 10 10 170 5 years 2018 560 180 90 180 20 40 20 10 270 10 years 2023 970 320 160 330 30 60 40 20 480 15 years 2028 1,280 420 210 430 40 80 50 20 620 23 years 2036 1,640 540 270 550 50 110 60 30 800

High Scenario 3 years 2016 400 130 60 130 10 30 10 10 190 5 years 2018 600 200 100 200 20 40 20 10 290 10 years 2023 1,060 350 170 350 30 70 40 20 510 15 years 2028 1,440 470 230 480 50 90 50 30 700 23 years 2036 1,910 630 310 640 60 130 70 30 930 Notes: Current scenario based on assumptions outlined in Table 4.3-9. Existing supply of Market Attainable includes two rental projects (~250 units) developed with provincial affordable housing monies during last 5 years. Future estimates reflect additional units required as driven by population growth, and based on existing distribution of housing need by type, including tenure and affordability. Source: Nichols Applied Management

Regarding the outlook for Slave Lake:  The development of about 94 units of attainable market ownership housing with the Fournier Place project could serve to address much of the existing estimated 120 unit gap, assuming market uptake.  Completion of rebuilt housing by 2012 should ease some of the rental pressure, which in turn may lower the market attainable gap, but likely only by a limited degree. Existing and future demand for rental housing within the next three years represents sufficient demand for an additional 70 units of market / market- attainable and about 125 subsidized units.  Immediate future demand (2014 to 2016) of 90 to 140 market and market- attainable houses outstrips the existing supply of lots within the town boundary– estimated at 55 lots. This implies the need to expand available land for housing developments.

Tri-Council Regional Growth Plan page 86 Sawridge First Nation | M.D. of Lesser Slave River | Town of Slave Lake January, 2015

Table 2—aa Housing Need Outlook by Growth Scenario – MD Lesser Slave River Total Units Current Population / Ownership Market Housing Timeframe Year New Residents Current Supply 2011 2,930 1,110

Future Requirements

Base Scenario 3 years 2016 100 30 5 years 2018 130 40 10 years 2023 180 60 15 years 2028 210 70 23 years 2036 160 50

Medium Scenario 3 years 2016 200 70 5 years 2018 290 100 10 years 2023 530 170 15 years 2028 740 240 23 years 2036 1,000 330

High Scenario 3 years 2016 210 70 5 years 2018 320 100 10 years 2023 590 190 15 years 2028 840 280 23 years 2036 1,170 380 Notes: Current scenario based on assumptions outlined in Table 4.3-9. Future estimates reflect additional units required as driven by population growth, and based on existing distribution of housing need by type, including tenure and affordability. Projected need for houses covers entire MD boundary, driven by population projections for entire municipality. Actual housing need for Area is in proportion to the relative portion of the MD within the Area boundary. Source: Nichols Applied Management

Regarding the outlook for the MD:  Future demand over the next ten years implies the development of anywhere between 30 and 70 additional ownership housing units.  The analysis assumes continuation of market housing only – however there may be demand for market- attainable and rental housing in neighbourhoods adjacent to the town boundaries.  A number of country residential developments with vacant lots have already been developed. Supply to absorb the forecasted demand is available – the degree to which the lots are absorbed depend on income levels and housing preferences of new residents.

The assumptions underlying the medium population growth scenario imply:

 High levels of SAGD development activities in MD Opportunity and a solid capture rate of local-based contracting opportunities in the Area.

Tri-Council Regional Growth Plan page 87 Sawridge First Nation | M.D. of Lesser Slave River | Town of Slave Lake January, 2015

 Decreased outmigration of the Area’s younger generation (as opposed to the historical trend) as they are engaged in the increasing economic activities, and in-migration of people outside the region to fill employment opportunities.  A relative increase in the need for starter homes for younger and/or newer residents.

The medium scenario reflects growth in the broader region’s population that could be captured, if the right planning, housing and economic development activities are undertaken and Slave Lake presents itself as the community of choice over other options in the region.

2.3.1.9 Key Considerations Informing Housing Strategies / Policies

Based on the housing analysis and economic development and planning considerations presented in this plan as well as experience with other community settings, the following are key considerations that should inform Area housing strategies and policies:  Housing is an important component of a community – adequate supply of quality and attainable housing has strong linkages with social well being, economic development and attraction and retention of residents versus other community options.  The housing challenges faced in Slave Lake are not unique – comparator communities face many of the same challenges. Housing is on average 5 to 10% more expensive than other communities on an ownership basis.  Slave Lake has a reasonably-active local housing market considering its population base. Development costs are higher than some other communities, but on par with other comparators. Ignoring the temporary upset of the 2011 fire, the costs of building and expectations of the municipality appear to be in line with other comparable jurisdictions.  Rental housing is 5 to 15% higher on an affordability basis, and has consistently outpaced costs in comparator communities. Part of this reason is the higher-than-average fluctuation in vacancies throughout the year – Slave Lake appears to be more sensitive to seasonal work shifts than other resource-based towns.  The 2011 fire exacerbated the housing situation, affecting supply, demand and costs. The lingering effects are projected to work themselves out of the local market in one-to-two more years. Costs are expected to continue a slow, downward adjustment; however, they are unlikely to return entirely to pre-fire levels.

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 At current levels of affordability, the cost and availability of ownership housing is not serving as an attraction to existing and potential new residents, and in the case of rental accommodation, is likely serving in some degree as a deterrent to living in Slave Lake. New housing developments will need to increase the choice of lower cost products if housing is to serve as a competitive advantage for the Area.  The existing supply of land, including vacant lots within Slave Lake is insufficient to meet projected housing needs (short and long-term). There is a need to develop new housing areas (as outlined in this document), of which sufficient supply exists adjacent to existing town boundaries. The requirement to install deep services (including a lift station) poses a financial barrier according to local developers. A way to overcome this issue is required to incent new development.

2.3.2 Housing Strategies

2.3.2.1 Addressing Remaining Short Term Fire Effects

The removal of the emergency housing, the ultimate date which remains as yet undetermined, will place short-term pressure on the rental housing market. Ideally this housing would remain in place until new rental accommodation is brought online, but based on needs for emergency housing elsewhere in the province, that is an unlikely possibility.

Incenting the rapid creation of additional rental housing, and promoting the successful uptake of the Fournier Place affordable ownership project are priorities, and are addressed in subsequent sections. Aside from this, there is little municipal leadership can do but let the final effects remove themselves from the housing market, and local builders can take time for themselves to recover.

2.3.2.2 Increase the Supply of Rental Housing

Apartments

The stock of short-term rental housing in Slave Lake should be increased. Ignoring the effect of the 2011 fire, the pre-existing supply of rental properties is relatively less than in the communities of Athabasca and Edson. Attracting investors to construct apartment buildings is challenging in any centre, including Edmonton. The above-average fluctuation in vacancy rates in Slave Lake, compared to other resource-based towns, increases that challenge, and may be influencing investor decisions.

Tri-Council Regional Growth Plan page 89 Sawridge First Nation | M.D. of Lesser Slave River | Town of Slave Lake January, 2015

That said, according to the Town, one developer is contemplating an apartment project. The Town should at minimum streamline rental applications to the best of their ability, and consider additional incentives, without upsetting the existing development market. One option for consideration is incentive-based pricing on available municipal land parcels.

Worker-Based Lodging

As much of the apartment vacancy is likely influenced by short term seasonal work, particularly with winter drilling and logging activities, consideration should be given to short-term worker specific lodging. There are a number of housing models targeted at seasonal workers who require lodging for periods longer than a typical hotel stay, but not long enough to justify an apartment rental. Characteristics include:

 facade-style can vary, from apartment, lodge or dormitory look  different room configurations, but typically include two-to-four individual bedrooms sharing a kitchen, common space and bathrooms (similar to some student-residence layouts)  urban locations, to encourage interaction with host communities, including proximity to services and amenities  short-term stays, with a property management program that facilitates quick turnarounds  potential group bookings available through partnerships with local businesses and industry

Example of short-term worker accommodation – Banff Centre

100 to 200 units of this development type would ease pressure on the rental and hotel markets. A secondary option is the encouragement of new hotel investment including kitchenette units.

2.3.2.3 Ensure Sufficient Supply of Developable Land

As the existing stock of residential land is nearly exhausted, new development areas need to be brought on line, in the near term.

Tri-Council Regional Growth Plan page 90 Sawridge First Nation | M.D. of Lesser Slave River | Town of Slave Lake January, 2015

Developable lands, already in the hands of private developers have been identified to the south of town; with sufficient area to accommodate all need identified in the Section 2.3.1.8 Outlook. The key impediment to beginning development of those lands is the requirement for a lift station, with an estimated budget in the range of $1 million.

This particular issue has a history, linked to a previous deferral by developers in incurring this cost during a previous phase of development. The Town of Slave Lake continues to support concepts like servicing cost deferrals insofar as they assist developers in executing projects.

The Town and local development community should continue working together on overcoming the risk factor associated with front-end financing the deep servicing cost. Discussions with local developers indicate that ‘bridge financing’ through deferral of the servicing costs until lot sale is likely sufficient to enable new development to proceed. In the big picture, a $1 M cost deferral is a modest consideration to enable development of a large, new supply of residential land.

The development of two or three parcels of residential development is encouraged, to ensure healthy competition remains in the housing market.

2.3.2.4 Continue to Encourage Increased Housing Density and Affordability

Density

Slave Lake is already more dense than other comparator communities, both in terms of dwellings per municipal area, and population per dwelling. This alone has not achieved more affordable housing, but an important factor, which needs to be maintained. Planning and development policies should continue to:

 Encourage a mix of housing densities, including medium and high density single family and multi-family developments, in support of compact, smart growth communities.  Encourage use of all existing vacant lots within existing town boundaries.  Examine options for incenting density, including: o Promotion / support of additional multi-family (condominium) developments in the downtown core. o Simple density bonusing in terms of allowable units per area. o Further promotion of the secondary suites program, including possible in-kind incentives, such as waived inspection fees.

Tri-Council Regional Growth Plan page 91 Sawridge First Nation | M.D. of Lesser Slave River | Town of Slave Lake January, 2015

Affordability

As indicated in Section 4.3.1.8 Outlook, future housing demand will continue to include a portion of attainable ownership housing, which already faces a gap in terms of current supply. Ownership housing, in the range of $280,000 to $300,000, is required to address this market, consisting primarily of first- time home buyers, including young adults and new residents. Fournier Place represents a targeted attempt by the Town to meet this demand, and should be followed through on to ensure adequate take-up and cost recovery.

Revenues recovered through Fournier Place sales could be designated for further attainable housing in Slave Lake. Considerations include:

 Identifying suitable partner organizations, including funders, not-for- profit and private housing organizations, as well as industry in the region.  Targeting attainable market rent and market ownership projects, with monthly rent or carrying cost levels targeted at 80% of market values.  Density bonusing with a specific targeted outcome of incenting the creation of affordable units.  Mixed location – with consideration to appropriate proximity to services, depending on resident level of need.  Form requirements – which should encourage indistinguishable / seamless integration with surrounding units.

The presence of the LSLRHA, an active social and attainable housing management body in Slave Lake is an asset. Ways of partnering with the Authority and continued support to the entry of other affordable housing bodies, including Habitat for Humanity and private developers, should be encouraged. Tri-Council can also take an active role in petitioning the Provincial Government for additional attainable housing monies, drawing on the analyses and growth vision established in this plan.

Municipal representatives should convene a session with the local developer and builder market, to discuss the results and implications from the IDP, and encourage continued dialogue towards identifying mutually-acceptable strategies for achieving increased affordability levels in the Slave Lake.

As well, further analyses should be undertaken to further understand the varied housing requirements, to complement the high level, desk-based analysis contained in this plan.

Tri-Council Regional Growth Plan page 92 Sawridge First Nation | M.D. of Lesser Slave River | Town of Slave Lake January, 2015

2.3.2.5 Ensure Continuation of Appropriate Rural Housing Options

In terms of housing, the role of the MD is to provide options for rural living, a choice driven by a number of factors, including proximity to industrial employment options, lake-front living or individual preference. By all appearances this need is being adequately met and future strategies should ensure this continuance. Adequate supply of country residential lots exists to meet the projected demand, based on existing take-up trends.

With the encouragement of light industrial sites as a component of the economic development strategy, encouragement of acreage developments with light industrial characteristics (parking and shop siting) should continue. This is an important component to the local supply chain development - owner-operators of service contractors to the oil sands industry – that the Area wants to attract.

Tri-Council Regional Growth Plan page 93 Sawridge First Nation | M.D. of Lesser Slave River | Town of Slave Lake January, 2015

Tri-Council Regional Growth Plan page 94 Sawridge First Nation | M.D. of Lesser Slave River | Town of Slave Lake January, 2015

Strategic Planning Workshop at Board Room of Northern Lakes College, September 2013 Photo Courtesy of EIDOS Consultants Incorporated

3 ENVIRONMENTAL MANAGEMENT

Tri-Council Regional Growth Plan page 95 Sawridge First Nation | M.D. of Lesser Slave River | Town of Slave Lake January, 2015

The natural environment represents the functioning system of nature, which is comprised of many diverse ecosystems including wetlands, forests, water bodies and grasslands. The environmental features and resources define the character of the region, sustain its economy and offer a rich lifestyle for its residents. From a number of perspectives, the environment needs to be managed responsibly.

Maintaining access to the natural resources of the RGP Study Area and macro region are vitally important to the regional economy. Regional industries have a stake in continued access to wood fibre sources and continue to improve sustainable harvesting practices and more efficient utilization of the harvested products.

High quality Environmentally Significant Areas (ESA) exist within the RGP Study area that need to be protected. Lesser Slave Lake is an internationally recognized Significant Natural Area (Fiera, 2009) supporting a rich diversity of species. The lake is also vulnerable to land use changes in the surrounding watershed, which can degrade water quality and biodiversity. Within the RPG study area and surrounding wildlands are special areas of importance for conservation that need to be considered in a regional land use plan.

The RGP Study Area is a challenging place for community building. The terrain quickly changes from poorly drained lowlands to steep foothill slopes. The forested wildland interface creates special risks such as the 2011 wildfire that destroyed homes and businesses. An abundance of poor quality land often requires enhanced investment to ready the land for development. Environmental risks related to flooding, fire and land instability are present in the landscape that can cause future damage to life and property, if not addressed in the initial development cycle.

Environmental management is a term used to address the environmental challenges intrinsic to establishing an environmentally responsible and sustainable regional land use plan. The plan needs to strike a balance between environmental conservation and sustainable development. The plan recognizes that the land is managed under multiple jurisdictions and that coordination and collaboration is essential for effective environmental management.

This section describes:

 Environmental context of the RGP Study Area.

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 Issues and strategies for environmental management of growth and conservation in the Study Area.  Environmental Knowledge and Mapping  Regional Land Stewardship Planning  Environmental Risk Mitigation such as wildfire, and flooding along with contaminants and hazardous goods.

3.1 Environmental Context

3.1.1 Natural Region Context The RGP Study Area is a lowland plain surrounded by an outlier formation of the western Rocky Mountain foothills. Map 3.1 shows the Environmental Context of the Tri-Council Regional Growth Plan. Map 3.2 illustrates a 2011 airphoto mosaic taken after the May wildfires (see burn scars).

Map 3.1 Environmental Context Map 3.2 Ortho Photo

The RGP Study Area includes two distinct natural subregions (Natural Regions Committee. 2006):

 Central Mixedwood Subregion of the Boreal Forest Natural Region: Low lands around shores of Lesser Slave Lake  Lower Foothills Subregion of the Foothills Natural Region: uplands (Swan Hills and Pelican Mountain):

Table 3—a provides a general characterization of these natural subregions:

Table 3—a Natural Subregion Characteristics Natural Major Soils Major Vegetation Subregion Central Orthic Gray Luvisols. Closed-canopy mixedwood, aspen Mixedwood Brunisols on sands. dominant in early seral stages, Wetlands are mainly white spruce increasing with age; Mesisols, some Fibrisols, jack pine common on sandy sites; Gleysols. black spruce (tamarack stands) Common on extensive peatlands. Lower Foothills Orthic and Gleyed Gray Early to mid-seral pure or mixed Luvisols. Wetlands are forests (aspen, balsam poplar, mainly Mesisols with some black and white spruce, paper Gleysols. birch). Lodgepole pine - jack pine hybrids are common. Open black spruce peatlands; graminoid marshes and willow/marsh reed grass wetlands.

Tri-Council Regional Growth Plan page 97 Sawridge First Nation | M.D. of Lesser Slave River | Town of Slave Lake January, 2015

3.1.2 Significant Environmental Resources and Protected Areas

3.1.2.1 Environmentally Significant Areas (ESA) The Alberta Tourism Parks and Recreation (ATPR) maintains a mapped record of Environmentally Significant Areas (ESA) identified through seven criteria and ranked by three levels of significance: International, National and Provincial (see glossary) (Fiera, 2009). ESA’s within and surrounding the Regional Growth Plan Study area are located on Map 3.1 and described in Table 3—b.

Table 3—b Environmentally Significant Areas ESA Area & Location Description Designation & Significance ESA # 98 17.8 sq km Contains Rare of Unique Landform: Marten Marten Mountain North East portion of Lesser Mountain Area patterned fens, northern Provincial Slave Lake Provincial Park ribbed fens ESA 112 793.3 sq km Grizzly Ridge Wildland Provincial Park: Provincial South West of Slave Lake containing headwater streams, and critical Grizzly Bear Habitat ESA 550 Athabasca River Valley, East of Major river with intact riparian areas. Athabasca River & Slave Lake Historic First Canadian and Fur Trade Valley Route, Recreational Water Route, National downstream major white-water rapids. ESA 562 121.9 sq km Contains Unique Landform: Lesser Slave Provincial East of Lesser Slave Lake Lake Area Aeolian Beach Ridge ESA 563 38.9 sq km Contains Unique Landform: Lesser Slave Provincial East of Lesser Slave Lake & Lake Area Aeolian Beach Ridge Mitsue ESA 564 0.7 sq km Contains Unique Landform: Lesser Slave Provincial East of Lesser Slave Lake Lake Area non-patterned fens without natural lawns, horizontal fens. ESA 566 69.7 sq km Contains Unique Landform: Lesser Slave Provincial East of Lesser Slave Lake Lake Area Aeolian Beach Ridge ESA #574 2055 sq km Lesser Slave Lake Important Bird Area (IBA) Lesser Slave Lake Entire Lesser Slave Lake and Wildlife habitat, Parks and Protected Areas International shorelands Fishery ESA #707 75.9 sq km Lesser Slave Lake Important Bird Area (IBA) Lesser Slave Lake East shore of Lesser Slave Lesser Slave Lake Provincial Park International Lake

3.1.2.2 Wetlands Wetlands are an important environmental resource which has multiple benefits for human society including food sources, storm water flood attenuation, and storm water quality treatment, among others. Mapping of wetlands has been undertaken by a number of agencies but the mapping record is incomplete in the study area. The GoA has been operating under an interim wetland policy since 1993. A new draft policy has been circulated for public review by AESRD and will likely in the future affect future land development in the region (Alberta Government, 2013).

Tri-Council Regional Growth Plan page 98 Sawridge First Nation | M.D. of Lesser Slave River | Town of Slave Lake January, 2015

3.1.2.3 Parks and Protected Areas Alberta Parks and Protected Areas is an important regional land manager which maintains a series of parks and protected sites, designated for a variety of purposes from conservation/limited access to tourism facilities. Parks and protected areas within the vicinity of the plan are:

 Lesser Slave Lake Provincial Park: 706 sq km, located on the eastern shore of Lesser Slave Lake. The park contains campgrounds, local trails, TransCanada Trail and public beaches; and contains the Boreal Centre for Bird Conservation.  Grizzly Ridge Wildland Provincial Park: 706 sq km, located in the Swan Hills headwaters with critical Grizzly Bear Habitat. The park has limited access and back county trails.  Grouard Trail Provincial Recreation Area (PNT): located along the north shore of Lesser Slave Lake. The recreation area is a crown land designation (protective notation) designated for the route of the TransCanada Trail.

3.1.2.4 Critical Wildlife Habitat The AESRD maintains a Fisheries and Wildlife Management Information Management System (FWMIS) which contains a number of regionally significant wildlife features displayed on Map 3.1. Key features are:

 Woodland Caribou: a mapped range extends from the Athabasca River Valley west into the low lands surrounding the Lesser Slave River.  Grizzly Bear: primary and secondary habit zones are centered on the Grizzly Ridge Wildland Provincial Park and extend toward Slave Lake townsite.

3.1.2.5 Rare and Endangered Species The Alberta Conservation Information Management System (ACIMS) maintains a publicly accessible record of rare and endangered plant and animal species accessed by land description. These records should be accessed and presented related to development initiatives.

3.1.2.6 Local and Traditional Knowledge Mapped records and GoA/NGO databases have limitations. They are not necessarily complete or address locally valued landscape features or traditional knowledge and use. Consultation with local experts and elders prior to crown dispositions or approvals of major development is a requirement of the Province.

Tri-Council Regional Growth Plan page 99 Sawridge First Nation | M.D. of Lesser Slave River | Town of Slave Lake January, 2015

3.1.3 Watershed Context The RGP Study Area occupies a portion of the Lesser Slave Watershed and straddles three of its sub-basins as illustrated in Figure 3.1:

 Swan River Subbasin: including the south shore communities and southwest portion of the Town of Slave Lake. Named tributaries which empty into Lesser Slave Lake include Mooney Creek, Nine Mile Creek.  Lesser Slave River Subbasin: including most of Slave Lake Poplar Lane, and Mitsue Industrial Park. Named tributaries including Sawridge Creek empty into the Lesser Slave River and then to the Athabasca River.  Lesser Slave Lake North Subbasin: including Marten Beach. Named tributaries include Marten Creek which empty into Lesser Slave Lake

Lesser Slave Lake is the third largest lake in Alberta, a major tourist destination and is recognized as a biologically significant area for birds. The Lake is a water source for a variety of different users and the Lesser Slave Watershed Council (LSWC) works closely with the Province and local stakeholders to maintain the health of the watershed.

Tri-Council Regional Growth Plan page 100 Sawridge First Nation | M.D. of Lesser Slave River | Town of Slave Lake January, 2015

Figure 3.1 Lesser Slave Watershed

3.2 Environmental Knowledge and Mapping

Issue Identification In the past, lack of good quality mapping of environmental and terrain conditions has been a barrier to good regional land planning decisions and to private sector land development initiatives.

One component of the Regional Growth Plan is to assemble available spatial data for the RGP Study area, to identify resources and tools for ongoing use in land use decisions and finally to generate specific data assemblies to aid in the preparation of a regional land use plan.

Spatial data and analytic tools are so much more publicly available and on a wide variety of devices including smart phones. Tools and data that were once the exclusive domain of specialized organizations with expensive software and hardware are now becoming available, utilizing commonly available internet browser applications. The general expectations and comfort with spatial data is increased due to exposure to devices and applications that utilize GPS coordinates (e.g., Garmin and Google Earth).

Tri-Council Regional Growth Plan page 101 Sawridge First Nation | M.D. of Lesser Slave River | Town of Slave Lake January, 2015

The public sector has made significant advances in assembling data for regional land use decision-making and for implementing on-line tools to utilize this data for both broad planning and specific development applications.

The Regional Growth Plan brings together both the tools and better resolution spatial data to facilitate better land use decisions for both development and conservation, at different stages in the delivery process.

3.2.1.1 Publically Available Spatial Environmental Data and Tools The availability of digital spatial data in a variety of formats has been on the rise in Alberta. Common data types useful in regional analyses include:

 LIDAR: dense point clouds of ground surface and/or feature elevations that can be used in three dimensional displays and routines including hillshade models (see Map 1.1) and contour generation (Maps 3.3-3.11).  Geo-rectified Raster Imagery: such as ortho-photography which can be overlaid with other GIS data to describe surface conditions (See Map 3.3)  GIS data sets: collections of lines, points and polygons with linked descriptive attributes, used to describe the spatial distribution for features of interest (e.g. Environmentally Significant Areas (ESA) or properties for ownership and land use zones).

For the RGP Study Area there are now significant sets of searchable and downloadable data. Some data sets are available at no cost (Open Government License), other data sets will require a licence under a vendor agreement (may involve a fee). Some key data portals and collections are identified in Table 3—c.

Table 3—c Selected Public Agency Geospatial Data Portals and Collections Map Feature Source Description / link Cost Online Data Portal GeoDiscover Alberta GoA Searchable by map boundaries of No charge for most GoA and other public agency searches data sets / www.geodiscover.alberta.ca/

ACIMS ATRP Searchable by map boundaries of No charge for Alberta Conservation most ATPR maintained data sets / searches or Information www.albertaparks.ca downloads Management System search acims

Fish and Wildlife AESRD Collections about fish and wildlife No charge for Mgmt Information http://srd.alberta.ca/fishwildlife/fwmis/ searches or System -FWMIS default.aspx downloads

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Map Feature Source Description / link Cost Alberta Geological AGS A portal for both downloadable data No charge for Survey sets and interactive maps for a searches or variety of topics including geology, downloads. surficial geology, hydrology, and Some data sets are aggregate sources. only displayed on http://www.ags.gov.ab.ca an interactive online Surficial Geology is particularly map. detailed in the RGP Study Area Online Data Collections LIDAR* AESRD ALTALIS / www.altalis.ca Fee for use OrthoPhotos* AESRD ALTALIS / www.altalis.ca Fee for use Base Features* AESRD ALTALIS / www.altalis.ca Fee for use Includes common background features such as roads and hydrology Flood Risk Maps AESRD Browser map tool, not downloadable. Only displayed Many data gaps. Coverage only for information on an Sawridge Creek. interactive online map. *Note: if GoA sponsored or funded project, data sets may be obtained directly from AESRD under a user license.

In addition, online tools are now available to assist in development and regulatory applications as shown in Table 3—d.

Table 3—d Selected Public Agency Online Application Tools Map Feature Source Description / link Cost Landscape Analysis AESRD Web enabled spatial tool that allows No charge for Tool (LAT) users (applicants) to plan activities on searches and public land, integrating some 80 data display prints layers including crown land dispositions. www.esrd.alberta.ca search LAT

AESRD The Electronic Disposition System No charge for (EDS) Access User Manual is a quick display prints reference document for industry clients, working with and submitting applications and information about surface leases to the crown electronically. It is for clients that need access to Lands Division electronic systems such as EDS itself or its supporting applications of PCS and LAT to complete analytical and reporting tasks. Disposition Spatial AESRD http://esrd.alberta.ca/forms-maps- Processing Tool services/industry-online- (DSPT) services/disposition-spatial- processing-tool.aspx

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3.2.1.1 RGP Study Generated Environmental Data The Map Atlas and the underlying GIS database for the RGB Study Area have been assembled for various purposes and at various scales, including:

 Assembling tiled data (e.g. orthophotos) into a data set for the RGP Study Area.  Generating contour information (1 meter intervals).  Assembling of environmental data and property data for interpretive purposes.  Generating interpretive data to assist in developing a regional land use plan and assessing the quality of the landscape for conservation and/or development.

The quantity of data generated is very large. As a result, eight sheets of potential development areas are represented at a more detailed scale (~1:30,000 for 11x17” Map Atlas sheets).

The Terrain Analysis sheets assemble the following information:

 Airphoto base  Property base  Setbacks from hazards and sensitive features  Contour intervals (1 meter)  Terrain Units.

The Terrain Units have been compiled by Pedocan Land Evaluation Ltd., based on:

 Site reconnaissance  Airphoto interpretation  Reference to precedent published work including Surficial Geology (Pawley and Atkinson. 2012. Map Sheets 83O SW and SE).

Terrain Units divide the land into similar mutually exclusive units of landform, parent material (surficial geology) and soils. For this classification of the land, interpretations are provided for both development limitations and conservation priority.

Descriptions of the terrain units and interpretations are provided in the text of the Map Atlas. Interpretations for land supply are described in Section 4.5.

Terrain Unit interpretations found on Maps 3.3 – 3.11 are intended for regional scale land use decisions and as such have significant limitations. Limitations include:

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 High level regional data with limited reconnaissance field verification.  Environmental risks such as flooding and geotechnical instability would have to be further investigated for individual sites and development applications.  Groundwater levels have not been specifically tested in the field but are implied through airphoto interpretation of indicators such as vegetation community type.

Map 3.3 Terrain Assessment – Assineau Map 3.4 Terrain Assessment – Canyon Creek Map 3.5 Terrain Assessment – Wagner Map 3.6 Terrain Assessment –Slave Lake North Map 3.7 Terrain Assessment – Slave Lake South Map 3.8 Terrain Assessment – Lesser Slave River Map 3.9 Terrain Assessment – Mitsue Map 3.10 Terrain Assessment – Marten River

3.2.1.2 Recommended Strategies Strategies for implementing and managing environmental data for planning and development applications include:

Strategy 1: Develop a regional policy, systems and procedures to improve access to and ease of use for environmental data in development planning and applications. To reduce barriers to development and avoid environmentally unsound development a policy is needed to facilitate improved access to publicly available data including flood risk maps and environmentally sensitive areas.

Strategy 2: Develop a regional policy to implement a checklist and landscape analysis tool similar and compatible to Green Zone applications. For clarity and ease of use of readily available public environmental data, a policy and procedures guide will assist development applicants.

Strategy 3: Develop a policy to identify triggers and procedures that correlates types of environmental information with types of development applications, e.g. major industrial developments, ASP’s, Subdivisions and development permits.

3.3 Regional Land Stewardship Planning

Issue Identification Land stewardship will become an increasing important consideration for Tri- Council and its member jurisdictions. As Tri-Council takes on the management of a Regional Land Use Plan of a significant sub-region of Alberta, it is at the same time is taking on a land stewardship role. If Tri- Council wants a voice in forthcoming stewardship planning initiatives, the Regional Growth Plan needs to be forward thinking and anticipatory. Two

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key regional initiatives are the Lesser Slave Watershed Management Plan and the Upper Athabasca Regional Plan under the Land Use Framework.

3.3.1.1 Lesser Slave Watershed Management The Lesser Slave Watershed Council (LSWC) is a provincially funded not-for- profit Watershed Public Advisory Council (WPAC). WPAC’s are mandated to:

 To assess the condition of the watershed.  To prepare plans to address watershed issues.  To education and stewardship activities throughout the watershed,  To engage stakeholders in the watershed, including provincial, municipal and federal governments, important industrial sectors, conservation groups, and aboriginal communities.  To seek consensus on solutions to watershed issues.

To date the LSWC has initiated a series of background studies related to producing a State of the Watershed report. The report is a precursor to starting on a Watershed Management Plan (WMP), which would recommend beneficial management practices (BMP) that address a variety of issues affecting the health of the watershed and it’s receiving water bodies.

Completing a WMP initiative will take time and cooperation for a not-for- profit group with limited resources. All jurisdictions in the watershed benefit from a healthy lake and good water quality. Poor land use practices along one shore of Lesser Slave Lake can produce nutrient runoff and compromise water quality for other locations around the lake. Tri-Council has a stake in managing land use around the Lake and participating in the LSWC led Watershed Management Plan is an excellent way of building a sustainable future.

Recommended Strategies Goal Maintain healthy water bodies focusing on water quality preservation within the Lesser Slave Lake watershed.

Strategy 1 Collaborate with the Lesser Slave Watershed Council on the development of a watershed management plan to better protect shorelands and lake water quality of Lesser Slave Lake

Strategy 2 Collaborate with the Lesser Slave Watershed Council, to institute Beneficial Management Practices for development in the vicinity of sensitive Lesser Slave Lake shorelands, tributaries and wetlands that function to filter pollutants and nutrients from entering the lake.

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Protection of Lesser Slave Lake water quality to mitigate and avoid water quality problems and nuisance blue green algal blooms or invasive species is a concern for all Tri-Council jurisdictions. Watershed management is most effective means of managing nutrient laden runoff from the watershed and maintaining the natural buffers of wetlands forests and riparian vegetation. Watershed water quality management is often about non-point source pollution and is therefore a multi stakeholder problem. The LSWC is a multi stakeholder organization that needs the support of Tri-Council jurisdictions.

Watershed Beneficial Management Practices (BMP) are available to reduce the negative effects of development in the vicinity of sensitive, at risk landscapes. The LSWC is working with stakeholders to promote beneficial practices. BMP’s are available from a number of published sources for lake setbacks, land use bylaw provisions, building practices and land use activities are available from a number of sources. Some examples include:

Alberta Environment and Water (AESRD). 2012. Stepping Back from the Water: Management Practices Guide for New Development Near Water Bodies in Alberta’s Settled Region. Edmonton AB. Online at: http://environment.gov.ab.ca/info/library/8554.pdf Stewart, Judy LLB. 2013. Model Land Use Bylaw: Lakeshore Development Provisions For Conservation and Management of Riparian Lands and Uplands to minimize Nutrient Loading and Pollution of Pigeon Lake (Draft) prepared for Pigeon Lake Watershed Management Plan.

3.3.1.2 Land Stewardship and the Land Use Framework The Tri-Council Region has some high quality natural areas that give character, create biodiversity and perform valuable ecological services. Examples include Lesser Slave Lake, the Grizzly Ridge Wildland and the extensive wetlands and riparian areas. Keeping these sensitive environments intact, connected and viable is an important feature of a sustainable regional land use plan.

Recommended Strategies Goal Continue to protect, monitor and evaluate environmentally significant areas:

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Strategy 1: Pursue partnerships with neighbouring jurisdictions, regional organizations and other levels of government to create more effective regional resource and ecosystem management and conservation programs including baseline assessments and environmental monitoring. Strategy 2: Maintain an ongoing awareness of provincial legislation related to the management of the natural environment. Strategy 3: Encourage compact and clustered development that reduces impervious surfaces within new developments and natural areas. Strategy 4: Recognize the importance of riparian and wetland areas and collaborate on the preservation of these areas as part of the development review process within the plan area. Strategy 5: Anticipate and participate fully in the development of the Upper Athabasca Land Use Plan, particularly related to the Lesser Slave sub-region. Strategy 6: Coordinate the shared use of regional environmental significant area mapping and data improving access to environmental information as part of development applications and the review process. The Land Use Framework (LUF) has been an initiative of the Province of Alberta under the Alberta Land Stewardship Act and Regulations. The LUF is managed by Alberta Environment and Sustainable Resource Development (AESRD).

While the LUF has a focus on land stewardship, its underlying purpose is to protect the long-term economic and social well-being of Albertans, as identified in the LUB vision statement “Albertans work together to respect and care for the land as the foundation of our economic, environmental and social well-being.” (GoA, 2008).

The RGP Study Area is a subregion of the Upper Athabasca Regional Plan (UARP) area. The UARP region is based on the approximate extents of rural municipalities largely occurring within the upper Athabasca River watershed basin, and extends southwest to the Rocky Mountains and BC boundary. Planning within the UARP will be under the auspices of the Land Use Framework (LUF) under the Alberta Land Stewardship Act and coordinated by the Province in concert with a Regional Advisory Council. Input from Watershed Public Advisory Councils (WPAC), First Nations, Industry Municipalities, Environmental Non-Government Organizations (ENGO) and GoA land managers will all need to be considered in the development of the UARP.

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Planning activities of the UARP are expected to occur in the near future. An objective of the Tri-Council Regional Growth Plan is to inform and direct the UARP for the subregion represented by the study.

A balanced plan will insure continued sustainable access to natural resources and lands for settlement and business activities. An integrated strategy to create access, connect trails and conserve natural corridors will benefit the Tri-Council region and RGP study area, by providing for tourism and recreation activities.

3.4 Environmental Risk Mitigation

Issue Identification Fires, and floods, have all impacted settlement in the RGP Study Area. Some of those impacts have had major consequences in terms of life and property for example the 1930’s flood of the Lesser Slave River which caused the relocation of the Town and the 2011 wildfire which devastated the region.

A variety of environmental risk is human generated and related to contaminants and hazardous materials that are by-products of economic activity if the region.

3.4.1.1 Wildfire and FireSmart Slave Lake is located in the heart of the foothills boreal forest. Wildfire history in the region is extensive. Wildfires can travel more that 100 kilometers in a day and are extremely dangerous to life and property as evidenced in the 2011 Wildfire. The FireSmart Regional Action Team (FRAT) was formed after the wildfire to advise Tri-Council. FRAT has prepared a “Regional Emergency Preparedness and Response Plan” that includes jurisdictional role clarification; communication and information-sharing protocols and input from GOA Departments/Agencies” (Sutherland 2012a). FireSmart strategies need to be integrated at various levels of planning including, Regional, General Municipal Plans, Area Structure Plans, Infrastructure and individual lot developments.

From a Regional Land Use Planning perspective key FireSmart principles include (FRAT, 2013, Appendix III):

 Vegetation Management Options: up wind fuel load reduction options.  Development Options: effective planning to mitigate fire risk and improve fire response.

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 Legislative Options: utilizing available legislation to promote FireSmart Awareness and reduce fire threat.  Public Education: communication and outreach to promote public awareness.  Interagency Cooperation: Cooperative agreements, partnerships, initiatives, linked emergency plans and assigned commitments and responsibilities.  Cross Training: training and simulations for wildfire response to promote effective coordinated action and improve safety of responder and the public.  Emergency Planning: protocols of emergency responses, incident command and site management systems

The location of future land uses in the RGP Study Area has been based on several strategic priorities:

 Maintain proximity to major highways to facilitate evacuation and emergency response in the event of a wildfire.  Develop in contiguous areas adjacent existing development with established services and access.  Develop in locations that have a reasonable response time from fire stations.  Ensure the capability of responders is matched to the scope of new development.  Address site specific risks as new development areas are planned through a system of detailed Wildfire Hazard Assessments.

As a result of the above new developments where possible should follow the alignment of Highway 2. The RPG assumes that site specific risks can be mitigated prior to development through a Wildfire Hazard Assessments and subsequent measures including fuel reduction techniques.

Other considerations for mitigating the risk in new development may include:

 Subdivision layouts that consider the exposed or upwind edge of development by creating natural fire breaks (e.g. placement of a linear fire break, park or school field).  Ensuring access to development perimeters which interface with forests.  Fire resistant building materials: can be recommended or mandated at development or building permit approval stage.

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 FireSmart Landscape Construction: promote BMP’s for landscape techniques that rely on less combustible species arranged to slow the spread of fire.  FireSmart Landscape Maintenance: establish maintenance procedures the reduce fuel loading of grass areas.

Recommended FireSmart Strategies for the Regional Growth Plan

Strategy 1 Establish the Tri-Council region as a FireSmart Community. The application and maintenance of status as a FireSmart Community will ensure that FireSmart planning and preparedness remains in the forefront and can be an ongoing source of community pride and identity. Tri-Council may choose to establish the region as a FireSmart Community under a program of FireSmart Canada. Strategy 2 Establish an ongoing coordination group to implement a wildfire mitigation plan, and emergency response organization. Strategy 3 Establish FireSmart principals and procedures throughout the approval process of planning and construction of new development. FireSmart principals and strategies need to be addressed at each stage of development delivery from regional plans down to individual lot developments.

3.4.1.2 Flood Risk Mitigation In light of recent severe flooding in Alberta municipalities, avoidance of flood damage for new development is a high priority of the Province and Municipalities the insurance industry and individual property owners. New provincial policies have been established regarding the mapping of flood risk areas. In the RGP Study area, only the Sawridge Creek has a provincially published flood risk map, as illustrated in Figure 3.2. The Lesser Slave River and other tributaries have no provincially published maps although the following Area Structure Plans do portray flood risk within prescribed areas:

 Poplar Lane ASP – see Figure 4.5  Waterfront ASP – see Figure 4.8

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Figure 3.2 Sawridge Creek Flood Hazard Map Source: AESRD website, http://environment.alberta.ca/01655.html

For locations near unmapped flood plains, several RGP strategies are recommended.

Recommended Strategies Goal Develop a regional policy to require major developments to map flood risks of rivers and creeks that may impact:

Strategy 1 Prohibit development in mapped flood risk areas unless in full compliance with Flood Risk Mitigation. Strategy 2 Work with municipal and provincial levels of government to assemble relevant data defining flood prone areas to reduce barriers to development and avoid environmentally unsound development. Strategy 3 Ensure the submission of a flood risk assessment as part of development applications in defined flood prone areas. Strategy 4 Review and revise existing ASP’s in light of new provincial regulations and policies for development in flood plains and

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updated flood hazard mapping with current terms of floodway and flood fringe.

3.4.1.3 Environmental Contaminants and Hazardous Substances The resource extraction, manufacturing and transportation of goods produce contaminants and wastes that can affect community and environmental health.

Recommended Strategies Goal Manage contaminants and mitigate risks to achieve a healthy contaminant free airshed, soils and water resources for the RGP Study Area:

Strategy 1 Identify regulations with setbacks from contaminants sources and hazardous goods: A statutory setback precludes at risk land uses (such as residential). Examples would be a sanitary landfill (100m), a closed sanitary landfill without a final clearance certificate (100m), a wastewater lagoon (100m),an enclosed wastewater treatment facility(50m), and an ERCB setback from a well or O&G facility with sour gas (variable depending on risk. Strategy 2 Establish precautionary setback where barriers or risks to life and property can be identified. The CN rail line is an example which now has daily train loads of cars with hazardous and explosive cargos. Strategy 3 Keep heavy industry located downwind of residential areas and Separate residential development and potential contaminant sources.

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Tri-Council Regional Growth Plan page 114 Sawridge First Nation | M.D. of Lesser Slave River | Town of Slave Lake January, 2015

Canada Day Celebration at Schurter Park Photo Courtesy of the Town of Slave Lake

4 MANAGING GROWTH

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The Economic Development and Housing Section sets out expectations for population growth and business expansion. This section on Managing Growth addresses questions about the location and staging of future land uses in two time frames:

 The 2036 planning horizon for the RPG study.  A long term land supply (minimum thirty years).

This latter time frame is important because the local jurisdictions will need to address future land needs from a supply of Crown owned land. Starting discussions early will better ensure an orderly transition.

In developing a Regional Land Use Plan, this section addresses:

 Planning Influences.  State of existing infrastructure and municipal services to sustain new development.  General assessment of land use supply and demand for residential uses.  Regional growth management strategies.  Review of development constraints and opportunities in the RPG study area.  Presentation of a Regional Land Use Plan  Delineation of referral boundaries

4.1 Planning Influences Pre-existing statutory plans, planning studies and policies have an influence on the location and type of new development in the three jurisdictions that make up Tri-Council.

4.1.1 Provincial & Regional Planning Initiatives

4.1.1.1 Land Use Framework Context The Regional Growth Plan study area is a subregion of the Upper Athabasca Regional Plan (UARP) area. As described in Section 3.3.1.2, planning activities have yet to be initiated but are expected within the foreseeable future (no date defined). An objective of the Tri-Council Regional Growth Plan is to inform and direct the UARP for the subregion represented by the study.

4.1.1.2 Lesser Slave Lake Watershed Similarly, regional scale watershed planning is being undertaken by the Lesser Slave Watershed Council (LSWC) which is a Watershed Advisory Council (WPAC). As described in Section 3.3.1.1 the LSWC is working toward

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the development of a Watershed Management Plan that will employ Beneficial Management Practices for land use management.

4.1.1.3 Town / M.D. 124 Intermunicipal Development Plan The Town of Slave Lake and M.D. 124 adopted an Inter-Municipal Development Plan (IDP) in 2001. The IDP is a broad-based policy document providing a framework for land use planning in areas of mutual interest to both municipalities. The intent of the IDP is to provide both municipalities with a long range plan that reduces potential development conflicts and provides a process for ongoing consultation and cooperation in areas of mutual concern.

4.1.1.4 Lesser Slave Lake Indian Regional Council The Lesser Slave Lake Indian Regional Council was established in 1971 to improve the economic and social conditions of First Nation people in the Lesser Slave Lake region. The Council represents a collaborative approach among five First Nation members, whose mission is to encourage economic development, improve social, education and cultural opportunities that contribute to economic development and to improve the communications among groups involved in economic and social development of First Nations (LSLIRC, 1971).

4.1.2 Local Community and Municipal Planning Map 1.1 shows the relevant ASPs (Town, MD, and Joint ASPs) for the Regional Growth Plan boundary. Statutory and community development plans in effect for Tri- Council jurisdictions are summarized in Table 4—a.

Table 4—a Statutory and Community Development Plans Jurisdiction/ Plan Name Description Date Adopted Sawridge First Nation Community Development General guidance document for 1995 Plan planning development within SFN Reserve Lands M.D. 124, Municipal Development Plan General guidance document for 2013 development and services of the MD. M.D. 124, Integrated Community General guidance document for 2010 Sustainability Plan sustainability policies of the MD

M.D. 124, South Shore Area Structure Development plans and recommended 2001 Plan land uses for Lesser Slave Lake hamlets of Canyon Creek, Wide Water and Wagner M.D. 124, Marten Beach Area Development plans and recommended 1996 Structure Plan land uses for the hamlet of Marten Beach M.D. 124, Poplar Lane Area Structure Development plans and recommended 2004 Plan land uses for the lakeside hamlets of Poplar Lane

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Jurisdiction/ Plan Name Description Date Adopted M.D. 124, Waterfront Intermunicipal Development plans and recommended & Town of Slave Lake Area Structure Plan land uses for lands surrounding the 2007 Lesser Slave River at the outlet to Lesser Slave Lake Town of Slave Lake Municipal Development Plan General guidance document for 2007 development and services of the Town Town of Slave Lake Municipal Sustainability Plan General guidance document for 2007 sustainability policies of the Town Town of Slave Lake Growth Plan General guidance document for 2007 managing future grown of the Town, including population projections and land demand / supply analysis Town of Slave Lake South Expansion Area Development plans and recommended 2004 Structure Plan land uses for land south of Highway 2 Town of Slave Lake Southwest Area Structure Development plans and recommended 1988 Plan land use for the SW quadrant of town, north of Highway 2

ASP’s are further described in Section 4.7.

4.1.2.1 Sawridge Fist Nation – Community Development Plan Sawridge First Nation has developed a Community Plan, established in 1996, to help guide long term development on lands within close proximity to the Town of Slave Lake. The Plan evaluates the environmental conditions of lands based on their potential to accommodate future development.

Beyond the land capabilities for development the Plan also assesses the current infrastructure and servicing networks and explore options for infrastructure expansion necessary to build the capacity required to accommodate future growth.

4.1.2.2 M.D. 124 Lesser Slave River - MDP The Municipal District adopted a Municipal Development Plan (MDP) to provide a framework to guide long term planning throughout the M.D. and coordinate all future subdivision and development with the established vision, goals and objectives.

The overall goal of the MDP states the following: “It is the goal of the MDP to protect and develop communities within the M.D. in accordance with the community’s vision while providing the necessary opportunities for maximizing the economic use of the M.D.’s resource land base and providing for industrial and economic diversification within the overall context of well- planned growth, change and development.” (ISLELS, 2013)

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The MDP recognizes the unique, established communities throughout the M.D. and establishes policies to promote compatible development in these areas. The Plan recognizes the many competing interests throughout the M.D. (E.g. agriculture, resource development and residential) and strives to apply policy directives that mitigate any potential conflicts.

The MDP establishes high level policy that guides the direction of more detailed Area Structure Plans (ASP). The MD has adopted ASP’s for Poplar Lane, Marten Beach, the Lesser Slave River (lands adjacent the Town of Slave Lake), and the communities along the South Shore of Lesser Slave Lake.

The ASP’s outline opportunities for different types of land uses based on the location, serviceability and character of each plan area. The majority of the areas identify opportunities for residential development with consideration for commercial and other supportive community facilities where appropriate. Beyond the actual land use proposals the focus of the ASP’s is on the ability of the land to accommodate development.

The M.D. 124 Land Use Concept within the MDP identifies Community Areas as the focus of future growth and development. These areas include defined Hamlets and other clustered residential areas that serve different functions based on the range of employment and service land uses mixed into the communities.

The intent of the Plan is to provide opportunities for the long term expansion of the Community Areas and ensure that potential resource development respects these locations and mitigates any potential impacts on the long term viability of established communities.

There are 15 Community Areas identified in the Land Use Concept. The predominant land use proposed is residential with opportunities for Commercial, Institutional and Light Industrial provided these locations and uses are compatible with Residential.

Beyond the Community Areas the Land Use Concept recognizes Mitsue as an Industrial Area, recognizing that this area is designed to accommodate heavy industrial and resource-based industrial uses requiring separation from other land uses.

4.1.2.3 Town of Slave Lake - MDP The Town of Slave Lake adopted a MDP in the fall of 2007 to guide the long term development of the community and to establish a vision supporting sustainable community development principles. The MDP establishes goals, objectives and policies for the community, ensuring that new development

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is compatible with existing neighbourhoods and contributes to the Town’s long term sustainability.

The joint vision in the Town’s MDP and Municipal Sustainability Plan (MSP) states the following: “In the year 2035, Slave Lake is the community of choice, recognized as a dynamic, regional leader providing a balanced quality of life in a pristine environment.” (BAPG, 2007).

The MDP has been developed in concert with the MSP and recognizes the importance of involving residents in strengthening community initiatives in partnership with the local government. Beyond strengthening internal relationships, the MDP also recognizes the importance of long-term, collaborative relationships with its adjacent partners in building a sustainable region.

The Town has adopted the Southwest and the South Expansion ASP’s to provide more detailed guidance on specific areas. The lands within the Southwest ASP have largely been built out, though there remain commercial opportunities along the highway corridor and lands in the western portion of the plan area available for new residential development.

The South Expansion ASP represents the bulk of the lands intended to accommodate the Town’s long term growth. These areas south of Highway 2 provide opportunity for a variety of residential densities and types and have established a regional commercial destination. The Plan also identifies the opportunity for the development of an Industrial Park that will significantly increase the land base available for large employment uses.

4.1.2.4 Joint ASP Plans The Town of Slave Lake and M.D. 124 have collaborated on the preparation of a Joint ASP for the Waterfront Area (2007) that serves to replace the Lesser Slave River ASP adopted by the MD.

The Plan envisions opportunities for low density residential, some limited commercial and increased recreation uses through the expansion of the marina facility and the preservation of environmentally sensitive areas surrounding the Lesser Slave River. The area contains a number of constraints and development opportunities and the resulting ASP is intended to be low intensity, recognizing the environmental significance of the river corridor.

Map 1.1 shows the location of relevant ASPs (Town, MD, and Joint ASPs) for the Regional Growth Plan boundary.

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4.1.3 Land Use and Zoning Bylaws

4.1.3.1 Sawridge First Nation Land Use in Sawridge First Nation is regulated on an individual basis by the Sawridge Assembly. The Community Development Plan described in Section 4.7.1, provides general guidance.

4.1.3.2 Municipal District of Lesser Slave River No. 124 The M.D. 124 Land Use Concept within the MDP identifies Community Areas as the focus of future growth and development. This land use concept is reinforced in the Land Use Bylaw for the Municipal District of Lesser Slave River No, 124. These areas include defined Hamlets and other clustered residential areas that serve different functions based on the range of employment and service land uses mixed into the communities.

Beyond the Community Areas, the Land Use Concept recognizes Mitsue as an Industrial Area, recognizing that this area is designed to accommodate heavy industrial and resource based industrial uses requiring separation from other land uses.

Map 4.1 Land Use - Existing

4.1.3.3 Town of Slave Lake The Town’s Land Use Concept focuses on the compatibility of adjacent land uses and decreasing development conflicts. The Plan illustrates the extensive natural features throughout the Town and recognizes the importance of preserving these areas from the impacts of adjacent development.

The Land Use Concept and the subsequent Town of Slave Lake Land Use Bylaw, establishes suitable areas for future residential growth that can be adequately serviced and provide opportunities for higher densities through the development of a variety of housing types.

The Plan recognizes the expansion of Regional Commercial opportunities along major transportation routes and differentiates these from a distinct

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downtown core. The focus of Regional Commercial uses is on automobile traffic, requiring greater exposure from major transportation corridors. Alternatively, the intent of the Downtown area is to provide a more compact commercial neighbourhood, creating a safe, attractive and interesting pedestrian environment.

The bulk of existing Industrial uses are focused in the northern parts of the Town surrounding the airport. The Land Use Concept identifies opportunities for the long term expansion of Industrial areas in the southeastern part of Town along Highway 2.

4.2 Infrastructure and Transportation Systems

4.2.1 Infrastructure Availability and Future Plans The infrastructure within the region is generally in good condition with suitable capacity for expansion or upgrade to accommodate the foreseen development. Many areas in the Town and South Shore hamlets have available capacity for short term infill development. Similarly, there are also a number of proposed development areas with long term plans for infrastructure extensions. A summary of the existing systems and capability to accommodate development is shown in the Map Atlas (Map 4.2 and Map 4.3) and described as follows.

Map 4.2 Municipal Infrastructure – West Sheet Map 4.3 Municipal Infrastructure – East Sheet

4.2.1.1 Town of Slave Lake The major infrastructure systems (water treatment plant, wastewater treatment system, major road network) have generally been planned to service a population of approximately 11,000 without major impacts. The growth can be accommodated through:

 densification and infill within the existing developed areas  development within the South Expansion Area  extension of services into the surrounding region  some low density growth could also be accommodated in the Waterfront ASP area.

New development areas would require the following:

Southwest Expansion Area: This is the most readily developable area with a defined Neighborhood Development Plan that is planned to accommodate both commercial and residential development.

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 The water distribution system is suitable for expansion. A booster station would be required to service land above an elevation of 610 m, which would include the proposed residential area southwest of Gloryland.  Extension of the sewer system much past the existing development will require a new sewage pumpstation, which has been planned on the west end near Caribou Trail and Hwy 2.  The Neighborhood Development Plan includes a surface water management plan.  Roadways would be extended in accordance with the Town Development Standards and Procedures and a traffic impact assessment would be required to determine when upgrades to the Hwy 2 and Caribou trail intersection is required, which is ultimately planned to be a signalized intersection.

South Central Expansion Area: This area is planned for mainly residential growth and all services are readily extendable. The limitations to development of this area are as follows:

 The most significant limitation of the presence of an abandoned landfill that would require assessment to define future risk and development limitations. Without assessment this site sterilizes a large portion of the area for residential development.  The topography of the area includes some steep slopes that may limit the developable area.

The infrastructure servicing requirements to for the area are:

 Extension of the water distribution system would require a new pump station at the existing Town reservoir.  The sanitary sewer system has been extended to the south extent of Holmes trail and is readily available for extension.  A surface water management plan for the area would be required.  Roadways would be extended in accordance with the Town Development Standards and Procedures and a traffic impact assessment would be required to determine the timeline for improvements to the Hwy 2 and Holmes Trail intersection.

South East Expansion Area: This area is planned for mixed commercial and industrial usage.

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 The water and sewer system are suitable for extension from the Holmes Trail, which would require significant off-site extension to facilitate initial development.  A surface water management plan for the area would be required.  A traffic impact assessment would be required to determine detailed location and geometry of access to Hwy 2.

4.2.1.2 Municipal District of Lesser Slave River Poplar Lane: The rural subdivision within the MD is currently serviced with a trickle fill water system that is experiencing difficulty due to over demand. Current sewer service is via holding tank and truck haul or disposal fields. This area is beginning to be incorporated into the urban service area with improved water service and the consideration of future sewer.

 The area has grown well beyond the original intent of the water system. This system is planned for upgrade to the water distribution system to facilitate additional development and higher level of service (distribution pressure with fire flow capabilities) as portion of the Regional Water initiative. The regional water project will result a new distribution main to service the area. The MD or developments will need to upgrade the existing distribution system and extend new distribution system for the improved service to be fully recognized.  It would be feasible to extend sewer service from the Town to service Polar Lane. Pressure sewer would be the most economical and feasible option that could utilize the existing watermains as sewer pipes once the new water system is installed. The area could also be service by gravity sewer; however a number of pump stations would be required and would likely not enable reuse of abandoned water lines.  There is a parcel that has been considered for development on the west side of Poplar lane that will be readily available to services with both water and sewer.  The Municipal District should consider a water and sewer servicing master plan to determine a long term plan for improvement of the water services and additional of sewer servicing.

New development in the area is limited by low lying wetland areas and the flood plain of Eating Creek.

Mitsue Industrial: This area does not currently have any potable water or sewer services. The MD does operate a raw water storage and pump system that provides piped raw (non-potable) water to the industrial users for fire suppression purposes.

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 The regional water project is planning for a future pipeline and reservoir to service this area with potable water when development demands.  There are no current plans for sewer service. Existing wastewater is stored and hauled off-site, or dealt with on-site by industrial users. A future Municipal wastewater system is unlikely; however, a lagoon treatment system would likely be feasible.

South Shore Communities – Canyon Creek, Widewater and Wagner: The Southshore Communities are currently fully serviced with water, sewer, gas and power. The MD is also in the process of upgrading roadways be improving Hwy 2 intersections and paving Southshore Drive.

 The existing water treatment plant in Canyon Creek is capable of servicing up to 1200 people and expandable to service up to 3000. Water distribution system can be upgraded in accordance with the water distribution Master Plan.  The existing wastewater treatment facility on the far west side of Canyon Creek is capable of servicing up to 1600 and expandable to service up to 3000, as well. The collection system is a pressure sewer system requiring each lot to include a dedicated pump system consistent with Municipal Standards.  There is an active development in Wagner currently in early stages.  There are pockets of land that could be readily serviced within the existing areas.  The most readily serviceable new development area is large portion of Crown land in the west end of Canyon Creek.

4.2.2 Transportation The transportation network within the RGP Study Area consists of Provincial Highways and Municipal roadways within all three jurisdictions. The function and classification of the transportation networks are described below.

4.2.2.1 Provincial Highways All provincial highways in the subject area currently function within expected limits and traffic demands are anticipated to be well below capacity throughout the growth horizon. Alberta Transportation indicates no major projects are planned within the area, or change in service classification in the next 50 years.

 Highway 2/44 and Highway 88 are classified as Level 2 highways  Highway 754 is a Level 3 highway  Highway 2A (Smith) is a Level 3 highway

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The highways are classified and maintained in accordance with the provincial high classification system (Alberta Transportation, Design Bulletin #27/2005).

Provincial Highway design and maintenance standards meet the Fire Smart guidelines.

4.2.2.2 Municipal District of Lesser Slave River No. 124 The M.D. River maintains a road inventory of over 600 kilometers. The road network is classified as follows:

 Industrial  Major Collector  Collector  Minor Collector  Farm Access

The M.D. has minimal paved roads and only then to protect existing infrastructure or to provide more effective dust control. The M.D. has recently completed upgrades to a key intersection on Highway 2 accessing the Southshore Hamlets and is in the process of paving priority section of Southshore Drive. The key upgrades planned include; ongoing paving of Southshore Drive and upgrading of Poplar Lane Road. The network will be extended in accordance with Municipal Standards to service growth as required.

The Municipal roadway design and maintenance standards meet the Fire Smart guidelines. Future planning and development should be aware of the Fire Smart guidelines particularly related to access routes and driveways from the lower classification roadways, which during interim stages may require special consideration to ensure suitable access and egress (see Section 3.4.1.1).

4.2.2.3 Town of Slave Lake The Town of Slave Lake current and future transportation systems are well documented in the Town of Slave Lake, Transportation Plan Update (November 2008, Associated Engineering). The Town network is classified as follows:

 Highway (under Alberta Transportation Jurisdiction)  Arterials  Collectors  Locals

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Some upgrades will be required within the Town and along the provincial highways to facilitate development and short and long term regional growth; however, twinning of the highway is not anticipated with the planning horizon of this study. Upgrades of the Town network will be provided by development as required. The short term upgrades (to 2036) are anticipated to be limited to upgrade of existing highway intersections.

The Town design and maintenance standards meet the Fire Smart guidelines.

4.2.2.4 Sawridge First Nation Sawridge First Nation maintains minimal local roads and driveway accesses. These roadways carry minimal traffic and generally provide a suitable level- of-service and will not be impacted by the projected growth. Future planning and development should be aware of the Fire Smart guidelines particularly related to access routes and driveways to ensure suitable access and egress.

4.3 Educational, Community and Protective Services

4.3.1 Education Facilities Within the Town of Slave Lake are a full set of educational facilities serving RGP Study area needs from preschool to post secondary. An inventory of educational facilities is provided in Table 4—b. Preschool options include Centennial Day Care and St. Mary of the Lake Catholic School in Slave Lake and South Shore Day Care in Widewater. Catholic and Public school boards provide K-12 classrooms with bussing available from the surrounding region. Koinonia Christian School also serves grade school regional needs.

Northern Lakes College operates in 26 northern Alberta communities and has its main campus and headquarters in Slave Lake. The college began in 1970-71 as a trades training facility and has since branched out to provide a variety of educational offerings - both on and off campus and through distance learning.

Table 4—b Educational Facilities Facility/ School Division / Description Address/ Operator Centennial Day Care Slave Lake Child Care Accredited Preschool / Day Care 401 6 Avenue SW Society facility and related services. Slave Lake Current enrollment of 142 to be increased to 200 after construction of new facility in Wildfire Centre South Shore Day Care, South Shore Children’s Located in Widewater Recreation

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Facility/ School Division / Description Address/ Operator Widewater Association Centre 780.369.3030

St. Francis of Assisi Catholic Living Waters Catholic Catholic School Grades 7 – 12 Academy Schools 2013/14 Enrolment:: 96 1700 Main Street SW Slave Lake

St. Mary of the Lake Catholic Living Waters Catholic Catholic School Grades Pre- School Schools School, K to Grade 6 409 – 6 Avenue SW 2013/14 Enrolment:: 155 Slave Lake St. Mary’s Outreach School Living Waters Catholic Alternate Catholic Junior and 219 – 2 Ave SW Schools Senior High Grades, including Slave Lake distance learning 2013/14 Enrolment:: 34 Roland Michener Secondary High Prairie School Division Public School Grades 7-12 School 2013/14 Enrolment:: 550 106 - 7 St. S.E Slave Lake Lakeside Outreach School Public Jr. and Sr. High Grades 117 3 Avenue NE 2013/14 Enrolment::50-60 Slave Lake C.J. Schurter School High Prairie School Division Public School Grades K-3 300 – 6 Avenue NE 2013/14 Enrolment::430 EG Wahlstrom School High Prairie School Division Public School Grades 4-6 228 – 4 Avenue NE 2013/14 Enrolment:: 270 Slave Lake Koinonia Christian School Independent Christian School Gloryland Heights Box 1548 2013/14 Enrolment:: Slave Lake Northern Lakes College, Northern Lakes College, Post-secondary community 1201 Main St. S.E Operates in 26 locations college with a focus on careers Slave Lake and trades and technology training. 2013/14 Enrolment:: 1264

Access to educational opportunities is a significant attractor for families coming to the region and for retention of young people to the region. Educational operators are responsible for program delivery and facility maintenance. Alberta Infrastructure manages capital development of schools. Municipalities facilitate grade school educational institutions through a joint use agreement where school indoor and outdoor facility use can be shared between the community and the students. In addition, schools sites in new residential expansion areas are allocated for school use under reserve provisions of the Municipal Government Act. For example in the Slave Lake South Expansion area, a joint Public and Catholic High School site has been subdivided and currently occupied by St Francis of Assisi Catholic High School. No new school facilities in the region are anticipated

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in the foreseeable future based on recent supply demand analyses and condition assessments of existing facilities.

Regional growth plan goals and strategies for educational facilities include:

Goal: Promote and coordinate with educational providers to deliver educational facilities and programs that encompass a variety of regional needs that are accessible to all citizens and that encourage young people to remain in the region.

Strategies: 1. Encourage and support collaboration and coordination of the educational sector with regional employers to identify new and emerging needs that serve to promote local-based educational offerings, in order to better retain young people and achieve formation of young household units, for matters such as: a. dual credits, b. joint community use of facilities, c. apprenticeship/career training at high school grades, and d. emergency response 2. Encourage and support efficient utilization of indoor and outdoor facilities by both students and the general population through joint use agreements and partnerships. 3. Encourage and support educational providers to integrate with regional emergency response protocols and resources. 4. For new grade school development (K-12): a. Plan new school sites for complete neighborhoods during the Area Structure Planning stage. b. Plan all schools for regional population needs, giving consideration to bus access.

4.3.2 Recreation and Parks Community amenities of the RGP Study Area are another important component for retaining families and supporting community lifestyles and health. Table 4—c lists the main features of the region for municipally based parks and community facilities.

The M.D. has developed community centre and park sites in Widewater and Canyon Creek. Many of the municipally supported facilities occur within the Town, under the management of Community Services. The recently upgraded Multi-Recreation Centre features a twin arena and field house. The Town partners with the Northern Lights College to provide a public aquatic facility that also provides for college student use. Outdoor sports facilities include the recently renovated Charity and Sinclair Baseball Parks. The Town

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has a series of municipal parks including a linear park system and asphalt trail along Sawridge Creek. An asphalt trails system also follows Highway 88 north to the Lesser Slave Lake Provincial Park boundary, forming part of the TransCanada Trail.

Following the 2011 wildfire, a major industry grant became available for the funding of a community centre. The Wildfire Legacy Centre answered the need to rebuild several facilities that were dilapidated and at the end of their life. Tri-Council member jurisdictions agreed to partner with local facility operators to create an all new facility that is developed and run by a community partnership. The Wildfire Legacy Centre is to be located on the Elks Club Site. The Centre addresses upgrading requirements for established community service providers. Needs accommodated include a banquet hall, day care and performing arts space.

Table 4—c Community Facilities and Parks Community Facility/ Operator Description Location Multi-Rec Centre Town of Slave Lake Twin arena, field house and 305 6 Avenue SW admin offices and indoor Slave Lake playground Northern Lights Aquatic Northern Lights College Public Aquatic facility including Centre 25m tank. Spray deck, water slide 1201 Main St. S.E and hot tub Slave Lake Sinclair Baseball Park Town of Slave Lake Set of fenced diamonds for minor 6th Avenue NE ball plus four T-ball stations along Slave Lake with amenities including parking. Charity Baseball Park Town of Slave Lake Set of fenced diamonds for adult 6th Avenue NE baseball and slow pitch along with Slave Lake amenities including parking. Hilda Eben Park Town of Slave Lake Neighborhood park with 6th Street SE  tennis courts Slave Lake  sliding hill  outdoor rink  skateboard park  playground Schurter Park Town of Slave Lake Town park with 3 Ave and 6 Street NE  picnic area Slave Lake  splash park  sliding hill  outdoor rink  open space areas  Community Trail link Slave Lake Community Trail Town of Slave Lake Natural Park system along and Sawridge Creek Linear Sawridge Creek including pave Park trails Trans Canada Trail Town of Slave Lake Paved trail system extending along Highway 88 frontage from Hwy 2 north to North Shore Drive

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Community Facility/ Operator Description Location Various Parks Town of Slave Lake Small neighborhood parks Spruce Park 14th Ave and maintained by the Town 5th St SE Poplar Park 6th Ave NW Kinsmen Park 11th Ave SE Kinnettes Park 12th ST SE Maple Crescent Park 5th Ave and 8th ST SE South West Park 2nd Ave SW Widewater Community Complex M.D. of Lesser Slave River Auditorium, kitchen, bar baseball diamonds and lakeside camping Canyon Creek Arena M.D. of Lesser Slave River Indoor and outdoor ice skating rinks with related amenities Wildfire Legacy Centre Community Corporation Under development: a community 400 6 Avenue SE (proposed) centre on current site of Elks Lodge is to include day care centre, multi-functional banquet and performing arts centre, and family services offices. The Centre also serves as an evacuation centre.

In addition to municipally operated parks and facilities are a set of provincial and wildland parks, back country trails and recreation areas, commercial and public tourism facilities including interpretive centres, hotels and marinas.

Regional growth plan goals and strategies for recreation facilities and open space include:

Goal: Provide parks and recreational facilities that: encompass a variety of scales; are accessible to all citizens; attract and retain people to the Slave Lake region; and encourage healthy community lifestyles.

Strategies: 1. Support the Identification and development of regional recreation trails, trail heads and natural recreation areas / corridors that benefit all jurisdictions and promote tourism: a. Create connections between communities and nature-based destinations. b. Partner with local organizations and Provincial land managers to identify and develop and operate new trails trail heads and access locations. c. Adopt recognized best practices to formalize and manage trail and natural area sustainable use that is compatible with the environmental sensitivity.

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2. Support improvements to regional public access to Lesser Slave Lake shorelands and boating facilities. 3. For the development of complete neighborhoods: a. Plan and provide for new park facilities as new development occurs. b. Ensure joint use agreements with schools to optimize benefits for both the public and school programs. 4. For the development of new country residential and/or hamlet residential development, plan and provide for local and regional access to nature-based recreational opportunities, consistent with country lifestyle expectations 5. For the development regional scale social and recreation facilities, consider regional partnerships and/or equitable funding arrangements to share development and operating costs and risks.

4.3.3 Health and Social Wellness Services Within Slave Lake are a number of important community wellness and critical care facilities that serve the population of the RPG study area. Types of facilities and services include:

 Regional Hospital and Extended care (Slave Lake Healthcare Centre)  Provincial and Not-for-profit agencies (Family Care, Mental Health)  Private clinics (GP, Dental, Eye)  Pharmacies  Family and Community Support Services (FCSS) (M.D. and Town)

Much of the health care infrastructure is regulated and/or managed by the province. Municipalities (and Tri-Council) do have an important role in the promotion of community wellness and linking people to health and wellness resources. This is typically accomplished through FCSS and participating in regional health and wellness planning and needs identification.

Regional growth plan goals and strategies for community wellness, health and emergency response services include:

Goal: Promote and coordinate with health and wellness providers to deliver facilities and services that: meets a variety of regional needs, are accessible to all citizens of the region, and promote community health and wellness.

Strategies: 1. Support collaboration and coordination in the health and wellness sector for the identification new and emerging needs to better serve the regional population.

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2. Collaborate on the delivery of Family and Community Support Services (FCSS) on a regional basis.

4.3.4 Protective and Disaster Services Fire Response The Lesser Slave Regional Fire Service (LSRFS) is an integrated multi- jurisdictional volunteer fire department that provides a fire response service to homes and businesses throughout the entire RGP Study area. The service operates out of three locations: Widewater, Slave Lake (headquarters) and Mitsue Industrial Area. The wildland interface setting requires integration with AESRD forestry and forest fire management administration in delivering FireSmart programs including fuel reduction treatments, emergency planning and community outreach. The service has seen a number of physical upgrades since the 2011 wildfire including equipment, and station improvements.

Ambulance In 2009 the Slave Lake Ambulance service was transferred to Alberta Emergency Health Services (AEHS), a branch of Alberta Health. For the Slave Lake Region, AEHS contracts air and ground ambulance to a local privately run EMS service.

Police The Royal Canadian Mounted Police (RCMP) has been contracted to maintain a detachment in Slave Lake to provide community policing for the entire RGP study area. A location along 6 Avenue SW near Highway 88, provides the detachment with good access to the RGP region.

Emergency and Disaster Response Emergency management protocols and organizational readiness has been tested and improved as a result of the 2011 wildfire. Under the province’s Emergency Management Act, a multi-agency regional approach has been developed to address matters including, command and control, emergency communications, fire response, evacuation, emergency housing, and emergency medical to name a few. Many of the 2011 wildfire “lessons learned” have strengthened local response systems and continue to inform similar organizations in other jurisdictions. Tri-Council and specifically the local jurisdictions have an important role under the Emergency Management Act.

Regional growth plan goals and strategies for emergency response services include:

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Goal: Promote and sustain protective services to serve the anticipated regional population and promote and sustain an integrated regional multi- agency emergency response capacity, which delivers and coordinates emergency command and control, communications, fire response, evacuation, transportation emergency accommodations, and emergency social and medical services.

Strategies relating to growth management:

1. Ensure that protective service and emergency response capacities are assessed in developments expanding into new areas. 2. Ensure that new developments are adequately protected with a fire department capacity and response time or have additional protective measures as set out in the Alberta Building Code 3. Assess service response times and the need for satellite locations at a minimum 5 year interval.

4.4 Crown Land Ownership The Lesser Slave Lake Tri-Council region is much like Hinton or Ft McMurray. It is surrounded by Crown land, vested in the Province of Alberta. The Public Lands Branch (AESRD) administers the use and/or sale of Crown land in accordance to published GoA policy. Planning for future development on existing crown land generally leads to two options:

 Sale of public land preceded by public consultation including First Nation Consultation  Granting land dispositions or leases.

The GoA generally has a policy to sell or lease its land at market value and to use market instruments which are open, transparent and fair. Granting a disposition and/or selling land takes lead time and involve a number of application processes. Advanced procedures and engagement with AESRD staff are needed to bring these processes to a conclusion.

4.5 Land Supply and Demand

4.5.1 Short to Medium Term Non residential (e.g. commercial and industrial) demands are addressed in Section 2.2.7, Table 2—o. Table 4—d below illustrates the available land supply to accommodate new residential growth within lands identified through adopted ASP`s. The following figures are adapted from those ASP`s that provided detailed area calculations for residential land classifications as

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well as proposed densities and average residents per households, allowing for the calculation of the projected population that each of these areas could accommodate.

Table 4—d Residential Land Supply Plan Area Available Land Projected (hectares) Population Town of Slave Lake ASP’s South Expansion – Western Lands 46.81 3,375 Low Density 32.31 1,938 High Density 14.5 1,437 South Expansion – Central Lands 81.93 5,265 Low Density 72.92 4,374 High Density 9.01 891 Total 128.74 8,640 M.D. 124 ASP’s Waterfront 165.8 1871 Country Residential 80.1 224 Suburban Estates 80.3 1,127 Multi-Family 5.4 520 South Shore 161.2 964 Owner/Operator 25.6 83 Resort Residential 135.6 881 Total 327 2,835

The estimates of Table 4—d are calculated directly from the Area Structure Plans. Generally, the table indicates that residential growth with the time frame of the Regional Growth Plan can be accommodated within the existing approved ASP’s. Some limitations are noted which may reduce yield expectations or delay availability:

 Ownership of privately held raw undeveloped land is concentrated with a few individuals/companies, which may constrain timing of development  Some yield expectations in some ASP’s may need to be reduced due to terrain constraints.

Even with the above two considerations the existing approved ASP lands will accommodate foreseeable growth during the plan timeframe. In conclusion, residential growth within the planning horizon of the plan (2036) is expected to be accommodated in existing Areas Structure Plans. However, flexibility and the need to address long term regional land use requires that long term reserves also be established in the RGP study.

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4.5.2 Long Term Demand The Tri-Council municipalities need to establish long term strategy for future growth beyond the PGP planning horizon for a number of reasons:

 Green Zone Context: The location of the RGP Study area within the crown-owned Green Zone means that long terms needs should be identified early to enable appropriate interim land management and lead time for delivery of land.  Flexibility: With developable privately held raw land controlled by a few owners, the municipalities may require flexibility in locational choices of raw land and delivery options.  Terrain Limitations: with many terrain locations being quite challenged for land development, the municipalities may again require flexibility in locational choices of raw land.

Given the above need for flexibility, an objective-based approach is recommended for establishing long term needs based on optimally placed desirable lands in the Green Zone which rely on the following RGP strategies.

4.6 General Regional Land Use Strategies Several strategies have emerged from the analysis, workshop discussions and dialogue with the Joint Committee.

Strategy 1: Focus on incremental growth in existing ASP’s. Given the modest expectation for population increase in the region from 2600 to 3200 residents, and the availability of lots from existing ASP development areas to support approximately 2800 people, the focus of the regional growth plan will be to focus on developing the existing ASP areas. Strategy 2: Start on a new industrial park. There is an urgent need to construct a new light industrial park. Land for lay down and oilfield servicing yards are non-existent and Slave Lake is losing business to Wabasca. Direction 3: Differentiate roles in land use delivery. In the past the MD, Town and Sawridge have played different roles in supplying the regional land use needs. Heavy industry and country residential have been provided by the MD. The Town accommodates complete serviced neighborhoods, light industrial and urban services including schools hospitals, recreation centers and parks. Sawridge has provided highway commercial and housing for First Nation members. Continued role differentiation is

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encouraged. Role differentiation envisioned for the future is described in Table 4—e.

Table 4—e Land Use Role Differentiation Jurisdiction Primary Supplier Shared Supplier Sawridge FN Business and Light Industry First Nation FN Highway Commercial First Nation Residential

M.D. 124 Heavy Industry Light Industry Country Residential Hamlet Residential CR/Light Industry CR Support Services

Town Complete Neighborhoods Light Industry Regional Scale Commercial Regional Scale Urban Services

Strategy 4: Separate residential and heavy industrial land uses. Historically, heavy industry has been located in the east and residential in the center core and to the west along the South Shore. From an airshed management perspective and with prevailing westerly winds, this historic arrangement would be important to maintain in the future. Strategy 5: Locate future urban residential neighborhood expansion to the Southwest. The predominant direction of urban expansion for the Town of Slave Lake has been south ward into the IDP fringe area. This land has drier better soils for foundation conditions but has other challenges including terrain constraints and important environmental features such as Sawridge Creek. The former Growth Plan (Town of Slave Lake, 2007b) identified 5 quarters of land as having high potential and an additional 4 quarters as moderate potential. The recent wildfire experience plus more detailed topographic data available to the current study suggests that future urban neighborhood development by steered to the west, in closer proximity to Highway 2. Strategy 6: Collaborate on a new industrial development. Moving forward on new development initiatives fundamental to the success of the short term can best be achieved through collaborative initiatives. The new industrial park would benefit from this approach. Sawridge may wish to cooperate on some Highway

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88 related developments north of the reserve and connect two developments together.

4.7 Development Opportunity Assessments This section discusses the type and geographic distribution of development opportunities in the RGP Study Area. Key considerations are locations and types of existing development, land supply (developable vacant land) and market demand for various land uses and long range strategic considerations.

4.7.1 Sawridge First Nation Within the context of the Regional Growth Plan, Sawridge FN, primary interest is better information about the development capabilities of existing IR parcels.

Existing Land Use The Community Development Plan identifies three general areas for development consideration, as illustrated in Figure 4.1.

Figure 4.1 Sawridge First Nation – IR 150H and IR 150G Source: UMA Engineering Ltd. 1996. Sawridge Community Development Plan

IR 150G - Core Reserve The core reserve land (IR 150G, SE6,73,5W5) has existing development and a concept plan guiding future development. Soil conditions get progressively poorer (with high water table) moving northward toward the Lesser Slave River (terrain units WS grading to WsWp on Map 3.7). Development has been slow as a result of these soil conditions. This parcel appears to above

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the 1:100 floodway elevations except some edges of the quarter section (UMA Engineering, 1995) (see Figure 3.2).

Building construction techniques will need to avoid basements and or employ fill to overcome saturated soils with poor bearing capacity.

The adjacent quarter (IR 150G, NW32,72,5W5) is lower and generally subject to flooding with wet peaty soils and therefore not suited to development.

IR 150G - Dispersed Parcels Along the Lesser Slave River A series of thirteen quarter-sections totalling approximately 842 hectares are dispersed along the Lesser Slave River. These lands are located within the floodplain of the Lesser Slave River. Because of the complexity of the land, the environmental sensitivity of the Lesser Slave River and the access and servicing issues there are limited opportunities for future development in this area. Two quarter sections (SE and SW of 6,73,4W5), next to the Telenaar Bridge and north of Mitsue Industrial Complex, have land with elevations above the flood plain of the Lesser Slave River. The proximity to Mitsue would suggest that these lands may have value for industrial or industrial support activities. The soils are rated Ws, indicating moderate limitations for development.

Reserve 150H Reserve 150H, abuts the south shore of Lesser Slave Lake, approximately ten kilometres west of the core area. Reserve 150H largely remains in a natural state with soil conditions that limit development opportunities. The terrain analysis map (Map 3.5) indicates that soil conditions are Ws – Wet Soils, which place a constraint on new development. The land slopes toward the lake with lower elevations being significantly poorer. The most developable sites are along Bayer Road. Some drainage improvements and or fill may permit deeper penetration into the reserve with new development.

The potential for flooding related to Mooney Creek. Mooney Creek parallels Bayer Road, up slope of the southern boundary of IR 150H. Flood hazard mapping has not been completed for this creek. While the creek is completely outside the IR, if during a flood event the stream channel became blocked a potential exists for overflow waters to follow the slope down into the Reserve. A flood risk study would define what flood exists exist and would recommend appropriate measures for house construction or diversionary works.

Recently three country residential style homes have been built fronting Bayer Road. With the planned extension of a waterline into the Bayer Road country residential area, more homes will be possible.

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4.7.2 MD and Town Infill Opportunities – Existing Approved Area Structure Plans The majority of land development during the planning horizon of the RGP Study will be accomplished in the still vacant lands within existing Area Structure Plans. Development opportunities in ASP lands are discussed below.

4.7.2.1 South Shore Hamlets – M.D. 124 The South Shore generally refers to hamlets and development west of Slave Lake and south of Lesser Slave Lake including Assineau, Canyon Creek, Widewater, and Wagner. The Bayer Road country residential area is also included in this discussion.

Figure 4.2 South Shore Area Structure Plan Source: M.D. 124, 2001, South Shore Area Structure Plan

Existing Area Structure Plan and Land Use Figure 4.2 illustrates the land use concept for the South Shore ASP. This lakeside resort hamlet has its own water and sewer services with a full build out population of 2344 persons. There are significant vacant parcels at the west end of Canyon Creek and in the Wagner area. Many lots are underdeveloped with older housing stock or mobile units. Renewal housing is often quite substantial in terms of structures and investment.

Uptake for acreage development in the south hamlets of Wagner, Wide Water and Canyon Creek has been steady. Some developments have taken many years to complete land sales and to achieve full build-out. One new subdivision has recently been started in Wagner.

Development Limitations Physical Constraints: The positioning of the CN railroad and Highway 2 close to the shore of Lesser Slave Lake represents a major constraint to further development. Precautionary setbacks are recommended for the railway line,

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Setbacks against Highway 2 are prescribed by Alberta Transportation and also the Subdivision Regulation under the MGA. A permit from Alberta Transportation is required for roadside developments within the development control zone (300 metres from provincial right-of-way or within 800 metres of the centerline of a highway and public road intersection).

Watershed Considerations: Beneficial Management Practices (BMP’s) should be employed given the proximity of development to the shore of Lesser Slave Lake. Shoreline setbacks and land use practices which limit nutrient laden runoff need to be implemented to protect lake water quality and health

Terrain Constraints: The land of the South Shore is quite complex with a variety of land forms and related development risks and constraints. Terrain Unit Mapping is presented in the map Atlas (Map 3.3, Map 3.4 and Map 3.5). Terrain Units presenting significant development constraints are:

 Coluvium and Escarpment (CsE): Limitation due to potential for geotechnical instability.  Moraine with Steep Slopes (Ms): Limitation due to steep slopes.  Stream Channel (Sc): Limitation due to potential for overland flooding.  Escarpment (E): Limitation due to steep slopes.  Wet Soils and Wet Soils with thick organics (WsWp): Limitation due to poor soil conditions and high water table.

Distance Constraints: While lands in the Assineau area present some development opportunities, the main limitation for Assineau is the commute distance from Slave Lake.

Outlook Within the time frame of the plan, continued incremental build-out of the lots in the existing ASP area is expected. One new subdivision in Wagner is in the early stages of development.

Regional Plan Strategies for South Shore Hamlets 1. Assineau: maintain as best agricultural land in the region. 2. Canyon Creek, Widewater and Wagner Hamlets: o Continue with incremental growth and infill. o Pay close attention to development limitations for specific parcels. Concerns include geotechnical instability, steep terrain, local flooding from creeks and poor saturated soils).

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o Implement watershed beneficial practices (BMP’s) to protect Lesser Slave Lake (e.g. shoreline setbacks and land use practices). o Improve the attractiveness of South Shore hamlets desirable lakeside resort community by improve the visual character and public amenities. o Provide improved public access to the lake and recreational amenities. o Promote and support back country access points in the vicinity of south shore hamlets. 3. Bayer Road Country Residential: o Extend shared water system serving both M.D, and IR 150H residents. o Promote the initiation of a flood risk study for Mooney Creek.

4.7.2.2 South Expansion Area – Town of Slave Lake In 2004, the South Expansion ASP was approved for lands south of Highway 2, within the Town boundary.

Existing Area Structure Plans and Land Use As shown in Figure 4.3, the land use concept envisions residential neighborhood development with schools and parks, highway commercial development and an industrial park. The ASP is divided into three sectors:

1. West Sector (west of Sawridge Creek): future residential neighborhoods, existing Gloryland subdivision, joint High School, higher density residential, and highway commercial 2. Central Sector: mainly residential development and highway commercial 3. East sector: Light and General Industrial Park plus existing Alberta Transportation Weigh Scale and M.D, 124 service yard and administration office.

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Figure 4.3 South Expansion ASP – Future Concept Source: Armin A. Preiksaitis and Associates. 2004. Town of Slave Lake – South Expansion Area Structure Plan

Since 2004, development has included some highway commercial development (e.g., service stations and hotels), a regional shopping centre (including Canadian Tire, Wal-Mart), some apartment developments and a Separate High School. No residential development has been started.

Development Limitations Development constraints are well documented in the ASP. The landscape is quite complex with landforms including escarpments, creek floodplains and flat terraces and poorly drained areas. Man made limitations include an abandoned solid waste landfill site with statutory setbacks of 300 meters for a variety of contaminant sensitive types of land use. These constraints have generally been addressed in the ASP Land Use Concept. The complexity of the terrain as shown on the Terrain Analysis Map 3.7 may limit yield in the central area.

Sawridge Creek Natural Area The Sawridge Creek Valley and floodplain is a natural landscape feature of high biodiversity, high development limitation and high value for extensive recreation use. As shown on Map 3.7 a broad area of upper terrace is incised with the creek floodplain bounded by distinct escarpments. This area should

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be protected from development and managed as a regional conservation feature.

Land Demand: For the planning horizon of the RGP Study, most of the expected demand for fully serviced complete residential neighborhoods can be met in the South Annexation ASP area. Additionally a critical need exists for industrial land which can largely be met in these ASP lands.

Regional Plan Strategies for South Expansion ASP 1. West Sector: o Continued development of planned neighborhood residential housing. Long term future expansion of urban neighborhoods to the southwest on better ground closer to Highway 2 (FireSmart) will enhance viability of initial phases. o Commercial retail and highway development would be longer term considerations for currently undeveloped lower poorer land along the highway. 2. Sawridge Creek Natural Area: o The Sawridge Creek Natural which needs to be cooperatively managed with AESRD and local stewards. The natural corridor can provide for back country access and trails of various descriptions, right from local homes in the area. 3. Center Sector: o Continued development of planned neighborhood residential housing. This sector has significant terrain challenges (topographic and geotechnical). It also has an old inactive landfill that needs additional work to allow development in the vicinity. o Commercial retail and highway development would continue to infill along the highway. 4. East Sector: o Flat Top Industrial Park: High priority initiation of a serviced light industrial park with an access east of the MD office, across Highway 2 from the Visitor Centre. Utilities can be staged. Water supply can be coordinated with the planned water service extension into Poplar Lane. o The Town may consider a joint venture with the M.D, developing adjacent lands in the M.D, to make a jointly managed industrial park. An overall feasibility study would be necessary to produce a conceptual design, with ownership considerations, viable initial stage and a cost and revenue sharing formula.

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4.7.2.3 Poplar Lane –M.D. The Poplar Lane Area Structure Plan was approved by the M.D. in 2003. A major concern of the plan was to identify flood risk areas and suitable areas for land development. Much of the ASP lands are depressional, poor peaty wet soils and subject to flooding from Sawridge, Eating, Florida and Mitsue Creeks.

Existing Area Structure Plans and Land Use Land Uses are illustrated in Figure 4.4. Generally the ASP provides for country residential development with limited amenities.

Figure 4.4 Poplar Lane – Land Use Plan Source: Matrix Planning, 2004. Poplar Lane Area Structure Plan - Map 11 Recommended Zoning

Development Limitations and Opportunities Development limitations are well identified in the ASP and reinforced in the Terrain mapping of Map 3.7. Risks and limitations include:

 Flood Risks (see Figure 4.5)  Depressional poorly drained wet soils  Wells and Pipelines  Highway 2 setbacks and access restrictions

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Figure 4.5 Poplar Lane Flood Plain Assessment Source: Matrix Planning, 2004. Poplar Lane Area Structure Plan, Map 2

Land Supply/ development Opportunities: Poplar Lane ASP has been built out to the limits of suitable developable land with the exception of:

 Development cell at west end next to the Town boundary.  Infill Country Residential between Highway 2 and Poplar Lane Road in the centre of the ASP, and  Development Cell east of West Mitsue Road adjacent Highway 2.

Regional Plan Strategies for Poplar Lane ASP  Incremental infill of residential development, limited by highway setbacks, poorly drained soils and flood risk.  A triangle of land on the west, next to the Town Boundary could be considered for higher density dwellings to meet the need for young couples and families.

4.7.2.4 Mitsue Heavy Industrial Park – M.D. 124 An Area Structure Plan for Mitsue Industrial Park dates back to 1983. An area of high ground exists in the core of a large surrounding wetland, providing some 540 hectares of developable land. The majority of Mitsue Industrial is fully built out with several large industrial plants for forest products and oil and gas plant and related service businesses. The land is zoned as “Industrial

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District”, permitting both heavy and light industrial uses. CN railway access is a key transportation advantage for the industrial area.

Figure 4.6 Mitsue Industrial Source: MD 124 Ownership Map

Development Limitations and Opportunities Expansion of the existing developed land is severely constrained by:

 Terrain Constraints (See Map 3.9): Ws, Wp Depressional peaty and wet soils bounded by moderately to steep sloped land (Mm, Ms).  Environmentally Sensitive Areas and Habitat features (see Map 3.1).  A network of oil and gas wells and pipelines.

Opportunities include:

 Convenient highway and rail access  Well established primary and secondary industrial base

Regional Plan Strategies for Mitsue Given the surrounding development constraints and the regional objective to initiate a new Flat Top Industrial Park on better land south of Highway 2:

 Continue to support and service existing industrial development in Mitsue, including minor incremental expansion.

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 Give priority to new light industrial development initiatives outside of Mitsue (i.e. new industrial park south of Highway 2).

4.7.2.5 Waterfront ASP – M.D. / Town The latest Area Structure Plan for lands straddling the Lesser Slave River was approved in 2007 by both the Town and M.D. This area has historical significance as the original Townsite and offers recreation access to the shores of Lesser Slave Lake and Lesser Slave River.

Existing Area Structure Plans and Land Use A land use concept was developed for the ASP including residential, country residential, industrial, business industrial, commercial, heritage theme area, recreational and open space uses.

Figure 4.7 Waterfront Area Structure Plan Source: ISL. 2007. Waterfront Intermunicipal Area Structure Plan- Land Use Concept

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Development Limitations and Opportunities Land development is highly challenged by a number of constraints:

 Flood Risk: large portions of the ASP are within the flood plain of the Lesser Slave River (see Figure 4.8).  Saturated silty soils with high water table.

Figure 4.8 Flood Plain Map from Waterfront ASP Source: ISL. 2007. Waterfront Intermunicipal Area Structure Plan- Flood Risk Map

Supply and Demand: While there is a significant supply of vacant land, there are significant constraints particularly related to flood risk and poor soils. Land is expensive to develop often requiring extensive fills to achieve stable foundations and surface elevations above the recognized flood elevations. Some of the proposed land uses rely on major investments into lakeside attractions -- which have not been forthcoming.

Regional Plan Strategies for Waterfront ASP Given the recent provincial government legislative and policy changes related to at-risk development in flood plains and that an extensive portion of this ASP covered by a mapped flood plain:

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1. Place priority on residential development on more suitable lands within the RGP Study Area. 2. Review the ASP in light of proposed changes to provincial legislation and policies on Flood Plain Development. 3. Promote updated flood risk mapping for the Lesser Slave River to current data and concepts for “flood fringe” and “flood way”. 4. Place priority on development which: o Can be flooded without serious consequences (e.g. holiday trailer parks and parks and recreational facilities). o Can absorb the cost of measures to fully mitigate flood risk (e.g. fill placement). o Are designed to accommodate occasional flooding in a defined flood fringe area. o Promote public access to the lake and tourism development.

4.7.2.6 Marten Beach ASP – M.D. 124 Marten Beach is a lakeside cottage and country residential subdivision, approved as an ASP in 1996.

Existing Area Structure Plans and Land Use The ASP provided for mainly cottage and country residential style residential lots, plus provision for commercial and recreational lots (see Figure 4.9). Poorer lands were left undeveloped. Most of the cottage lots have been developed but no commercial development occurred. The residential lots rely on trucked water supply and septage removal. An unfunded proposal exists to extend a main from the Town water system, up Highway 88 to Marten Beach Hamlet, providing a low pressure water system to the hamlet (see Map 4.3).

Demand for additional lots at Marten Beach is difficult to quantitatively ascertain, since there is no uptake of undeveloped lots to gauge interest. Anecdotally, lots with lakefront access are in demand and so the M.D. is interested in the feasibility of expanding Marten Beach.

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Figure 4.9 Marten Beach ASP Source: M.D. 124. 1996, Marten Beach Area Structure Plan

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Development Limitations and Opportunities

1. Development Constraints: Marten Beach is located in a backshore wetland zone behind a beach ridge which serves to block drainage and with an up slope river which periodically floods the area. The Terrain Map for Marten River (Map 3.10) indicates that land north of the Marten Beach access road is rated Ws/Wp or Wet to Wet Peaty Soils with moderate to severe development limitations. Soils get worse going northward. Next to the shore of Lesser Slave Lake is an Ice Thrust Beach Ridge (Terrain Unit Br) which is rated with severe development limitations, highly sensitive to disturbance and of high conservation value. 2. Flood Risk Constraints: Marten Beach has experienced frequent flooding such that it is on a Provincial list of at-risk communities. Currently no flood hazard maps exist for Marten River. 3. High Conservation Values: The lake and shorelands of Lesser Slave Lake are identified as an internationally significant Environmentally Significant Area (ESA). 4. Crown Ownership: Immediately north of the Marten River Subdivision is Crown Land under a protective notation designation which covers the entire north shore of Lesser Slave Lake

Regional Plan Strategies for Waterfront ASP Before additional expansion can be considered for Marten Beach a number of actions would be required:

1. Undertake or require to be undertaken a flood hazard mapping and flood mitigation study addressing: a. Flood hazard water levels and areal extent b. Recommended flood mitigation works to protect the existing community and any proposed future development c. Recommend suitable development areas that are flood risk free or risk tolerant 2. Undertake an ASP update plan that includes more detailed soils and geotechnical investigation to address development limitations at a site planning level of detail. 3. Protect the beach ridge with an environmental reserve designation. 4. Implement watershed beneficial practices (BMP) (e.g. shoreline setbacks and land use practices) to protect Lesser Slave Lake.

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4.7.3 Town of Slave Lake The Southwest ASP within the Town of Slave Lake has land available for residential expansion and includes two large areas that are identified as Parks, Open Space and Community Use, which are now proposed for residential infill opportunities. One of these areas is Fournier Place, which is intended to accommodate 94 single-family residential lots. The second parcel is across the street and south of 6th Avenue that has been used to accommodate temporary housing and could transition to a high density infill site.

Beyond the lands available for residential expansion within the Southwest ASP there are multiple opportunities for residential infill scattered throughout the Town that could accommodate higher density housing types.

4.7.4 New Lands for Long Term Regional Development Additional lands are needed to be designated in the Regional Land Use Plan to address consideration including:

 New land use initiatives which cannot be accommodated in existing ASP areas (e.g. new industrial park and new large lot CR/Industrial subdivision)  Reserves for future long term development to provide better certainty for municipal government, utility system planners, Provincial Crown Land Managers, and private land developers.

Five areas of new land development are identified on the Regional Land Use Plan (Map 4.4 and Map 4.5).

4.7.4.1 South Shore Expansion - MD South of Highway 2 and the South Shore hamlets of Canyon Creek, Widewater and Wagner are parts of 5 quarter sections, noted as being suitable for Country or Hamlet Residential development – with some qualifiers for portions of the quarter sections including: geotechnical, topographical (slope), and floodplain limitations. Identified quarter sections include:

 Quarter Section SE36, 73,8,W5: opposite entrance to Canyon Creek with both topographic (slope) and flood plain limitations.  Quarter Section NE29, 73,7,W5: opposite entrance to Widewater with both topographic (slope) and geotechnical limitations.  Quarter Section SW28, 73,7,W5: opposite entrance to Canyon Creek with both topographic (slope) and flood plain limitations.

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 Quarter Sections NE and NW22, 73,7,W5: north of Wagner and east of Nine Mile Creek with both topographic (slope) and geotechnical limitations.

4.7.4.2 Sawridge Creek South Residential - Town Urban Reserve The long term residential expansion of Slave Lake neighborhoods is identified for a broad terrace paralleling Highway 2 and accessed from a number of existing highway intersections. Ten quarter sections are identified in a contiguous block of land:

 Quarter Sections NW, SW & SE of 34, 72,6,W5  Quarter Sections NW, NE & SE of 27, 72,6,W5  Quarter Section SW35, 72,6,W5  Quarter Sections NW, SW & SE of 28, 72,6,W5

Parts of the block of land are affected by limitations including topographic, geotechnical and wet soils (see Map 3.7)

4.7.4.3 Flat Top Industrial Park – Town & M.D.

A reserve is needed to accommodate long term expansion of a proposed Flat Top Industrial Park, a collaborative initiative of the M.D. and Town. Five quarter sections are identified including:

 Quarter Sections SW & SE of 20, 72,5,W5  Quarter Section NE 17, 72,5,W5  Quarter Section SE21, 72,6,W5, portion south of Highway 2  Quarter Section NW 16, 72,6,W5

Development limitations are noted on Map 3.7.

4.7.4.4 Eating Creek South CR/Industrial –M.D. South of Highway 2, east of Eating Creek and accessed by an existing M.D. rural road is an area for a proposed large lot unserviced Country Residential/ Light industrial Subdivision. The M.D, has had repeated requests for large lots which can accommodate both home and business type industrial shops, equipment storage and lay down yards.

The proposed Easting Creek South location has some soil limitations which can be modified with drainage or local fills (see Map 3.9). There are also some oil and gas wells and collection lines that would have to be avoided. The initial subdivision could be as small as 80 acres or 8 lots. Portions of four contiguous quarter sections are identified:

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 Quarter Sections NE & SE of 16, 72,5,W5, portions south of Hwy 2 and east of Eating Creek  Quarter Sections NE & SE of 16,, 72,5,W5, portions south of Hwy 2

4.7.4.5 Marten River Gateway Industrial Park –M.D. Along Highway 574 to Wabasca-Desmarais, just east of the intersection with Highway 88 is a proposed long term unserviced light industrial park. This site has been the topic of a “Proof of Concept” (Nichols Applied Management. 2011) and is intended to provide a site for service industries with labour based in Slave Lake but who are focused on servicing InSitu Oilsands and Forestry in the M.D, of Opportunity. The site is partially overlain by a granular deposit which may have extractive value but also provide an economical site conditions for development. Other parts of the site are rated Wet soils with peat overlay (Map 3.10), rated as moderate to severe limitations for development

Portions of five contiguous quarter sections are identified on the north side of Highway 574:

 Quarter Section NE32, 75,6,W5, portions north of Hwy 574 and east of Highway 88.  Quarter Sections NW & NE of 33, 75,6,W5, portions north of Hwy 574.  Quarter Sections NW & NE of 34, 75,6,W5, portions north of Hwy 574.

4.8 Regional Land Use Plan A regional land use plan is presented in Map 4.4 and Map 4.5. The land use plan is based on:

1. Assessment of land supply and demand to establish overall regional priorities. 2. An area by area assessment of development opportunities and constraints 3. Application of regional plan strategies 4. Assessment of compatibility between land uses 5. Assessment of transportation and utility servicing implications

The plan only addresses municipal medium and long term land use requirements. Other lands administered by the Province are beyond the scope of the Regional Land Use plan.

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Similarly, the disposition of land within the Sawridge FN Reserves (IR 150 G and IR 150 H) is an internal matter for the First Nation and therefore not addressed by the Regional Plan.

Map 4.4 Regional Land Use Plan - West Map 4.5 Regional Land Use Plan - East

4.8.1 Development in Existing Approved Area Structure Plans Given that the majority of growth within the planning horizon for the RGP will occur within the existing ASP’s, the approved ASP’s will generally govern growth patterns. Exception would be where changes in provincial legislation (e.g. flood hazard legislation) with require a review of the ASP. Some ASP’s and /or Land Use Districts have undesignated “Urban Reserve” parcels (e.g. South Shore and South Expansion). In these parcels, the Regional Plan identifies appropriate land uses and development limitations (see Map Atlas, Map 4.4 and Map 4.5).

4.8.2 New Development in Current Crown Held Green Zone Lands As previously identified in Section 4.7.4, the regional growth plan defines medium and long range requirements to accommodate regional growth to support homes and business. The intent is to define needs early so that interim Crown management of those lands will be appropriate and so that with advanced information, due process can unfold on the release of lands. Again the type of proposed land use and related development limitation are provided in the Map Atlas (Map 4.4 and Map 4.5).

4.9 Intermunicipal Development Plan Boundaries Some minor changes are recommended to the 2000 IDP referral boundary as presented in Map 4.6:

Figure 4.10 illustrates the revised IDP referral area.

Map 4.6 Intermunicipal Development Plan

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Figure 4.10 Intermunicipal Development Plan Referral Area

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REFERENCES

Section 1 Introduction Flat Top Complex Wildfire Review Committee. May, 2012. Flat Top Complex Final Report. Minister of environment and Sustainable Resource Development. Edmonton. Sutherland, Bill. 2012. Lesser Slave Lake Region Tri-Council- Strategic Guidance. Adopted at November 21, 2012 Tri-Council Meeting. Sutherland, Bill. 2012b & 2014. Town of Slave Lake, Municipal District of Lesser Slave River No 124 and Sawridge First Nation: Tri-Council and CAO Governance Protocol.. Town of Slave Lake and Municipal District of Lesser Slave River No. 124. 2000. Intemunicipal Development Plan 2000

Section 3 Environmental Management Alberta Environment and Water (AESRD). 2012. Management Practices Guide for New Development Near Water Bodies in Alberta’s Settled Region. Edmonton AB. Online at: http://environment.gov.ab.ca/info/library/8554.pdf Fiera Biological Consulting Ltd. 2009. Environmentally Significant Areas – Provincial Update 2009. Alberta Tourism Parks and Recreation. Edmonton. Government of Alberta (GoA). 2008. Land Use Framework. Environment and Sustainable Resource Document, Edmonton Government of Alberta (GoA). 2013. Alberta Wetland Policy. Environment and Sustainable Resource Document, Edmonton Pawley, S.M and N. Atkinson. 2012. Surficial Geology and Quaternary History of the Southern Lesser Slave Lake Area, Alberta (NTS 83O/S) and related map sheets Lesser Slave River NTS 83O/SE and Faust NTS 83O/SW. Stewart, Judy LLB. 2013. Model Land Use Bylaw: Lakeshore Development Provisions For Conservation and Management of Riparian Lands and Uplands to minimize Nutrient Loading and Pollution of Pigeon Lake (Draft) prepared for Pigeon Lake Watershed Management Plan.

Section 4 Growth Management Armin A. Preiksaitis and Associated Engineering. 2004 Town of Slave Lake, South Expansion, Area Structure Plan Associated Engineering Alberta Ltd. 2010. Town of Slave Lake Storm Drainage Master Plan (Draft). Associated Engineering Alberta Ltd. 2005. Western Portion of the Slave Lake South Expansion Area – Conceptual Stormwater Management Plan. Brown & Associates Planning Group (BAPG). 2007. Town of Slave Lake Municipal Development Plan. Improvement District No 17 East and Planning Branch, Alberta Municipal Affairs. ND. Lesser Slave River Area Structure Plan.

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Improvement District No 17 East and Planning Branch, Alberta Municipal Affairs. ND. Hamlet of Smith Area Structure Plan. ISL Engineering and Land Services (ISLELS). 2013. Municipal District of Lesser Slave River No. 124 Municipal Development Plan – Bylaw 2012-09. Adopted at April 24, 2013 Council Meeting. Lesser Slave Lake Indian Regional Council (LSLIRC). 1971. Mission. Slave Lake AB. On line at: http://www.lslirc.com/ Matrix Planning and G.T. Hoffmann & Associates. 2004. Municipal District of Lesser Slave River No. 124, Poplar Lane Area Structure Plan Municipal District of Lesser Slave River No. 124. 1996. Marten Beach Area Structure Plan Municipal District of Lesser Slave River No. 124. 2001. South Shore Area Structure Plan Municipal District of Lesser Slave River No. 124. 2010. Integrated Community Sustainability Plan Municipal District of Lesser Slave River No. 124. 2013. Development Plan, Growing Together Natural Regions Committee. 2006. Natural Regions and Subregions of Alberta. Compiled by D.J. Downing and W.W. Pettapiece. Government of Alberta. Pub. No. T/852. Nichols Applied Management & Planning Alliance. 2011. Gateway Concept. Proof of Concept, Draft Report. For Municipal district of Lesser Slave River Randall Conrad and Assoc Ltd. 2004. Town of Slave Lake Parks and Open Space Master Plan, 2004 – 2014 Smith Hondo Coordination Group. 2002. Smith Hondo Local Plan Town of Slave Lake and Municipal District of Lesser Slave River No. 124. 2000. Intemunicipal Development Plan Town of Slave Lake and Municipal District of Lesser Slave River No. 124. 2007. Waterfront Intemunicipal Area Structure Plan Town of Slave Lake. 1988. South West Area Structure Plan, Land Use Bylaw No. 20 - 1988. Town of Slave Lake. 2007a. Slave Lake 2035 Growth Study. Town of Slave Lake. 2007b. Community Sustainability Plan. UMA Engineering Ltd. 1996. Sawridge Community Development Plan, Final Draft.

Section 5 Plan Implementation Sutherland, Bill. 2012a. Lesser Slave Lake Region Tri-Council- Strategic Guidance. Adopted at November 21, 2012 Tri-Council Meeting. Sutherland, Bill. 2012b. Town of Slave Lake, Municipal District of Lesser Slave River No 124 and Sawridge First Nation: Tri-Council and CAO Governance Protocol. Adopted at June 21, 2012 Tri-Council Meeting.

Glossary Alberta Environment (AESRD). 2008. Glossary of Terms Related to Water and Watershed Management in Alberta – 1st Edition. Edmonton AB. On line at: http://environment.gov.ab.ca/info/library/8043.pdf

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GLOSSARY

1) Regional Governance Terms Policy Collaboration 1. A governing principle, plan, or consistent course of action developed in A process through which parties that see different aspects of a problem order to meet recognized needs and to achieve specific measurable can explore constructively their differences and search for (and outcomes. Policies are normally broad, conceptual documents that implement) solutions that go beyond their own limited vision of what is outline approaches and/or considerations to be taken into account by possible. Collaboration is a mechanism for leveraging resources; dealing decision makers. Policies do not act as constraints, but provide with scarcities; eliminating duplication; capitalizing on individual information. (SEM) strengths; building internal capacities; and increasing participation and 2. A statement of intent that is not legally binding. It sets direction and ownership strengthened by the potential for synergy and greater impact. expectations for activities. (BRBC) (SEM) Provincial Land Use Framework Intermunicipal Dispute A policy of the Government of Alberta to introduce and implement A municipality holding the opinion that a statutory plan, land use bylaw or regional land use plans to ensure the long-term health of Alberta’s amendment adopted by an adjacent municipality will have a detrimental communities, economy and the environment. effect on it. Public and Stakeholder Involvement Dispute Resolution The process used to obtain advice or recommendations from a The process to inform and negotiate a mutually beneficial resolution of a community and engage them in decision-making. Public and stakeholder defined intermunicipal dispute. If a mutually beneficial negotiation cannot involvement is an umbrella term that includes a range of interactive be achieved the municipalities can seek a resolution through mediation approaches including information and education, consultation, and, ultimately through an appeal to the Municipal Government Board. collaboration, partnerships, and delegated authority. (SEM) Framework Referral An organized structure of policies, legislation, programs and tasks Involves informing adjacent jurisdictions of new or amended plans, land created to achieve a specific outcome. There can be frameworks for use bylaws or new development proposals providing opportunity to broad policies and strategic initiatives at various scales (e.g. provincial, comment on how the proposal may impact them. regional, sector, media); programs and program delivery; and short-term tasks and projects. (SEM) Recreation Corridor Inter-connected crown, public or private lands that are generally linear in Growth form and are of regional significance for the purpose of providing Growth of a region or municipality is defined as increase in its size, recreational opportunities, such as the Trans Canada Trail, walking trails population or employment. and parks and open space in the North Saskatchewan River Valley. Regional Recreation Corridors may also provide access to municipal Governance recreation opportunities. The process of decision-making and the process by which these decisions are implemented. Region The Lesser Slave Lake Tri-Council Region, specifically the geographic Guideline area contained within the participating jurisdictions. A specific performance measure that is not legally binding unless designated in legislation. It is a guide or indication of a future course of Regional action. It describes how something will be accomplished. It may contain Relating to the Region, whether by geographic proximity or by the impact numerical performance measures and may deal with multiple uses of that actions or decision may have on others. water. (BRBC) Stakeholder Outcome / Shared Outcome An individual, organization, or government with a direct interest in a The result of either planned or unplanned actions. For planning particular process or outcome. (SEM) purposes, "outcomes" are the desired endpoint and should guide the development and implementation of related programs. Outcomes can be Strategy / Strategic broad and long-term in nature or focused. They are used in both direction A perspective, position, or plan developed and undertaken to achieve setting and performance measurement. (G&G glossary) goals. It is the bridge between policy and concrete actions that outlines how a policy will be implemented to achieve its goals. (SEM) Partnership A relationship in which individuals or organizations share resources and 2) Municipal and Regional Planning Terms responsibility to achieve a common objective, as well as any resulting Area Structure Plan (ASP) rewards or recognition. It often includes a formal contract, new resources A statutory plan identifying many neighbourhoods where residential, and shared risks and rewards. The structure includes a central body of commercial, institutional and recreational areas will be located in a decision-makers whose roles are defined. The links are formalized. previously undeveloped area. These plans also describe the number of Communication is frequent, the leadership is autonomous and the focus people expected to live in the new area and how development will be is on specific issues. Partnerships are a form of collaboration. (SEM) staged over time. Methods Development Levy The methods are formal agreements between organizations that are A Bylaw that provides for the payment of a levy that may be used for the sharing people, technology, process or data and explain how the item is capital costs of new or expanded facilities related to water, sanitary being shared and sets out the means and systems CRGIS will adopt sewage, storm water and roads or land required for or in conjunction with when they collect, store, access, compile and analyze information about any of these facilities. the region

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Density (Housing) Municipal Government Act (MGA) Means a measure of the ratio of dwelling units per Net Residential Area The primary provincial legislation that governs municipalities is known as in Priority Growth Areas, and dwelling units per Gross Area in Cluster the Municipal Government Act or MGA. The MGA sets out legislated Country Residential Areas. roles and responsibilities of municipalities and municipal officials. Development Municipal Reserve (MR) A change in the use or intensity of use of land or a building or an act Lands designated as “Municipal Reserve” are lands for schools, parks done in relation to land or a building that results in or is likely to result in a and public recreation purposes provided by the developer as part of the change in the intensity of use of land or building. subdivision process. Intermunicipal Development Plan (IDP) Statutory Plan A statutory plan containing broad-based policies that are prepared by two A plan approved by a municipality under the authority of the Municipal or more neighbouring municipalities. Their main purpose is to ensure that Government Act (MGA) with the passage of a municipal bylaw. future growth reflects the mutual and individual interests of the Examples of a statutory plan are: an inter-municipal development plan, a municipalities involved. Typically, the focus is on the boundary area municipal development plan (MDP), area structure plans (ASP), between rural and urban municipalities. neighbourhood structure plan (NSP) and area redevelopment plans (ARP). Greenway A greenway is a linear park or public open space that connects parks and Smart Growth other public open spaces to one another. Greenways are active Smart Growth is the planning, design, development, and revitalization of recreation spaces that accommodate active transportation options for the communities to promote a sense of place, the preservation of natural and community (e.g. walking or cycling to work). cultural resources, and the equitable distribution of the costs and benefits of development. Smart Growth enhances ecological integrity over the Inclusive Communities / Complete Communities short and long term and improves quality of life by expanding the range Communities that have a variety of housing, commerce, recreational, of transportation, employment, and housing choices in the region in a institutional, social and public amenities within their boundary. Inclusive fiscally responsible manner. communities provide a physical and social environment where residents can live, learn, work and play without having to travel beyond the Social Infrastructure community boundary. Social infrastructure, or soft infrastructure, can refer to services provided by or in municipalities such as hospitals, community and recreational Infill Development facilities, public spaces, social housing, volunteer networks and Development in existing developed areas, occurring on vacant or community based agencies. underutilized lands, or redevelopment of a developed site to a higher density. Intensification 3) Economic Planning Terms The development of a property, site or area at a higher density than Affordable Housing currently exists, such as redevelopment (including the reuse of Affordable Housing - means rental or ownership housing provided to Brownfield sites), development of vacant and/or underutilized lots, the households who have an affordability problem (pay in excess of 30% of conversion or expansion of existing buildings, and infill development, their income on housing) and earn less than the median income, but are which may include Greenfield sites with development densities higher capable of independent living, without a need for support services; and than historical norms. require no ongoing government subsidies. Intermunicipal Development Plan (IDP) Economic Development A statutory plan adopted by municipal bylaw to address land use and Any effort, initiative or undertaking designed to aid or increase other matters as outlined in the MGA. A statutory plan jointly the growth of an economy. prepared by neighbouring municipalities to establish strategic policies and identify issues of mutual interest that overlap municipal boundaries. Major Employment Areas Areas that have, or are anticipated to have, a significant concentration of Land Use Bylaw (LUB) jobs, such as Port Alberta, Acheson, Nisku and Alberta’s Industrial A Bylaw that divides a municipality into land use districts and establishes Heartland. procedures for processing and deciding upon development applications. It sets out rules that affect how each parcel of land in a municipality may Market Housing be used and developed. Market Housing is defined as housing that is supplied by the private market without direct government subsidies. Under Market Housing, one Liveability / Quality of Life sub-category has been further delineated: The environmental and social quality of an area as perceived by Market Attainable Housing is defined as rental or ownership housing that residents, employees, customers and visitors. This includes safety and is modest in form and specification and is capable of being produced for health (traffic safety, personal security, and public health), local moderate-income households without upfront or on-going direct environmental conditions (cleanliness, noise, dust, air quality, and water government subsidies (e.g. through regulatory relaxations, efficient quality), the quality of social interactions (neighbourliness, fairness, design, tax incentives). Generally applies to households earning respect, community identity and pride), opportunities for recreation and moderate incomes between 100 percent and 125 percent of the entertainment, aesthetics, and existence of unique cultural and environmental resources (e.g. historic structures, mature trees, traditional median income level. architectural styles). Multi-family Housing Municipal Development Plan (MDP) A building constructed for residential purposes for use by two or more A statutory plan that functions as a municipality’s overall policy guide for families, e.g. duplexes, townhome and row house developments, future growth and development. The Plan outlines the direction of future multistory and high-rise apartments. development, the provision of transportation systems and municipal Non-Market Housing services, the coordination of municipal services and programs, Non-Market Housing is defined as housing that is operated and funded or environmental matters and economic development. created through direct government subsidies and includes different categories of housing based on the associated services needed by the

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clients. Non-Market Housing is further segmented into the categories of Cumulative Effects Affordable Housing and Subsidized Housing: The combined effects on the aquatic environment or human Affordable Housing is rental or ownership housing that generally does not developments arising from the combined environmental impacts of require on-going (operating) subsidies and is both affordable and several individual projects. (WCAG) targeted for long-term occupancy to households with incomes between 100 percent and 80 percent of the median renter income for their Drainage Basin household size; The total area of land that contributes water and materials to a lake, river, or other water body, either through streams or by localized overland Subsidized Housing is primarily rental housing that requires on-going runoff along shorelines. (SWQG) operating subsidies to make it affordable on a long-term basis to households with incomes that are generally between 80 percent and 65 Ecosystem percent or less of the median renter income for their household size. A community of interdependent organisms together with the environment they inhabit and with which they interact. (BRBC) 4) Infrastructure Terms Ecosystem Functions Processes that are necessary for the self-maintenance of an Ecosystem Infrastructure such as primary production, nutrient cycling and decomposition. The term Physical assets to provide services to citizens and to support the is used primarily as a distinction from values. (NALMS) functioning of a local or regional economy, including roads, sewer lines, transit, emergency response vehicles, recreational facilities, parks, Environment information technology and more. The components of the earth, including air, land, and water, all layers of the atmosphere, organic and inorganic matter, living organisms, and their Infrastructure, Local interacting natural systems. (EPEA) Infrastructure that has capital investment and maintenance requirements, including roadways, sidewalks, street lights and traffic signals, transit Environmental Indicator facilities, solid waste and water delivery systems, potable water A measurement, statistic or value that provides a proximate gauge or distribution systems, storm sewers, sanitary sewers, sports fields, evidence of the effects of environmental management programs or of the playgrounds, arenas, pools, police and emergency stations, civic state or condition of the environment. (NALMS) buildings and parks to support the concept of complete communities. Environmental Outcome Infrastructure, Regional The desired environmental end state defining the specific conditions or Infrastructure developed by the federal government, Province, functions that one expects for the environment. An outcome is an event, municipality, and/or regional service and provincial commissions to occurrence, or condition that results from an activity or program that has provide services to citizens and businesses, and to support the function an actual effect on resources, the environment, or Albertans. (IHCR of a regional economy (e.g. major interchanges, post-secondary Environmentally Significant Area (ESA) institutions, hospitals, bridges, highways, extension of light rail transit, ESA’s are identified areas containing rare or unique elements in the regional water and/or sewer systems, power systems). province, or areas that include elements that may require special Utilities - Franchised management consideration due to their conservation needs. ESAs do not Facilities for gas, electricity, telephone, cable television, water, storm and represent government policy and are not necessarily areas that require sanitary sewer legal protection, but instead are intended to be an information tool to help inform land use planning and policy at local, regional and provincial scales. 5) Environmental Planning Terms Geographic Information Services (GIS) Adaptive Management A set of tools for collecting, storing, retrieving at will, transforming and A dynamic system or process of task organization and execution that displaying spatial data from the real world for a particular set of purposes. recognizes the future cannot be predicted perfectly. Planning and organizational strategies are reviewed and modified frequently as better Geospatial information becomes available. Adaptive management applies scientific Fusion of geography and information technology collection, principles and methods to improve management activities incrementally management, analysis and integration of geo/location based data to as decision-makers learn from experience, collect new scientific findings, enable improved decision and policy making. and adapt to changing social expectations and demands. (SEM) Geospatial Data Beneficial Management Practices (BMPs) Data pertaining to the geographic location and characteristics of Techniques and procedures that have been proven through research, natural/constructed features and boundaries on, above, or below the testing, and use to be the most effective and appropriate for use in Earth’s surface. Alberta. Effectiveness and appropriateness are determined by a Healthy Aquatic Ecosystem (Healthy Lake) combination of: (1) the efficiency of resource use, (2) the availability and An aquatic environment that sustains its ecological structure, processes, evaluation of practical alternatives, (3) the creation of social, economic, functions, and resilience within its range of natural variability. Alberta and environmental benefits, and (5) the reduction of social, economic, Water Council. 2008 and environmental negative impacts. (BRBC) Conservation Nutrient An element essential for plant or animal growth. Major plant nutrients 1. The planning, management, and implementation of an activity with the include nitrogen, phosphorus, carbon, oxygen, sulphur, and potassium. objective of protecting the essential physical, chemical, and biological (AARD Web) characteristics of the environment against degradation. (EPEA) 2. The process of managing biological resources (e.g., timber, fish) to Point-Source Pollution or Non-Point Source Pollution ensure replacement by re-growth or reproduction of the part harvested Pollution that originates from one, easily identifiable cause or location, before another harvest occurs. A balance between economic growth and such as a sewage treatment plant or feedlot. (WFL) environmental and natural resource protection. (G&G glossary)

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Pollutant Water for Life: Alberta's Strategy for Sustainability A contaminant in a concentration or amount that adversely alters the The Government of Alberta's water management approach, outlining a physical, chemical, or biological properties of the natural environment. comprehensive set of strategies and actions that will ensure Albertans (USA - EPA) have safe, secure drinking water, healthy aquatic ecosystems, and a reliable quality water supply for a sustainable economy. (GWMT) Riparian Pertaining to the banks of a river, stream, waterway, or other, typically, Water Management flowing body of water as well as to plant and animal communities along The protection and conservation of water and aquatic ecosystems, such bodies of water. (NALMS) including their associated riparian area. In Alberta, several agencies have a mandate in this area. Alberta Environment is responsible for water Shore quality, quantity monitoring, and water allocations. Under the Water Act a The edge of a body of water and includes the land adjacent to a body of Director can set Water Conservation Objectives to protect minimum flow water that has been covered so long by water as to wrest it from and aquatic ecosystem health. Stakeholders can recommend Water vegetation or as to mark a distinct character on the vegetation where it Conservation Objectives to a Director via a Water Management Plan or extends into the water or on the soil itself. (PSSSPH) an Approved Water Management Plan. Alberta Sustainable Resource Stakeholder Development (SRD) manages crown lands including the bed and shores An individual, organization, or government with a direct interest in a of all water bodies. SRD, through its Fish and Wildlife Division, is also particular process or outcome. (SEM) responsible for fisheries and wildlife management. In addition, the Federal Department of Fisheries and Oceans upholds a no-net-loss State of the Watershed Report policy in its mandate to protect fisheries habitat under the Federal A document that identifies the current condition of a watershed including Fisheries Act. (Partnerships) the physical, chemical, and biological characteristics of its surface and groundwater and the pressures acting on it. (Partnerships) Water Quality The chemical, microbiological, and physical characteristics of water. Stewardship (FWMP) A principle or approach whereby citizens, industry, communities, and government work together as stewards of the province’s natural Water Quantity resources and environment. In general terms, stewardship means The volume or amount of water. (FWMP) managing one’s life, property, resources, and environment with regard for Watercourse the rights or interests of others. This can apply to a person, company, The bed and shore of a river, stream, lake, creek, lagoon, swamp, marsh community, government or group. Stewardship is an ethic and a value or other natural body of water, or a canal, ditch, reservoir or other that results from public education and partnerships. It is people-focused artificial surface feature made by humans, whether it contains or conveys in the sense that it relies on the desire and ability of people to make good water continuously or intermittently. (EPEA) decisions on their own accord that help resource and environmental outcomes. (SEM) Watershed The area of land that catches precipitation and drains into a larger body Surface Water of water such as a marsh, stream, river, or lake. A watershed is often Water bodies such as lakes, ponds, wetlands, rivers, and streams, as made up of a number of sub-watersheds that contribute to its overall well as groundwater with a direct and immediate hydrological connection drainage. (WRCG) to surface water (for example, water in a well beside a river). (SSRB) Watershed Approach - Place-Based Approach Sustainability A way of thinking and acting that focuses efforts within a watershed, Development that meets the needs of the present without compromising taking into consideration both ground and surface water flow. This the ability of future generations to meet their own needs. (UN) approach recognizes and plans for the interaction of land, water, plants, The balancing of opportunities for growth with the need to protect the animals, and people. Focusing efforts at the watershed level gives the environment. It reflects a vision of a vibrant economy and a healthy local watershed community a comprehensive understanding of local environment. Regarding renewable resources (e.g.: water, timber, fish, management needs and encourages locally led management decisions. and wildlife), sustainability involves managing renewable natural (WFL) resources so that their status, condition, or use is maintained over time. In this context, the use of a renewable resource, or impacts on it from Watershed Management / Water Management other human activities, should not exceed its capacity to maintain itself The protection and conservation of water and aquatic ecosystems, through re-growth, reproduction, and management practices. Regarding including their associated riparian area. Because land use activities on non-renewable resources (e.g.: coal, oil, gas, and minerals), the uplands of a watershed can affect ground and surface water quality sustainability involves the development of resources in a responsible and quantity, a broader, more comprehensive approach to planning is manner. This means protecting the environment during the construction often required. A Watershed Management Plan may look at water and operation phases and ultimately reclaiming the land disturbed by quantity, water quality, aquatic ecosystems, riparian area, as well as a development. In this context, non-renewable resource development is a variety of land use issues as they impact water. Watershed management temporary land use. (SEM) plans require water and land use managers to work together to ensure healthy watersheds. (Partnerships) Upland An area of dry land surrounding or upstream of a water body. (WCW) Watershed Management Plan Water Management Plan Water Act A comprehensive document that addresses many issues in a watershed A piece of provincial legislation in Alberta used to protect the quality of including water quantity, water quality, point and non-point-source water and manage its distribution. The Water Act regulates all pollution, and source water protection. It may or may not include a Water developments and activities that might affect rivers, lakes, or Management Plan. It may also examine ways to better integrate land and groundwater. (WFL) resource management within a watershed. (Partnerships) Water Body Watershed Management Planning /Watershed Any location where water flows or is present, whether or not the flow or the presence of water is continuous, intermittent, or occurs only during a Management Plan flood. This includes, but is not limited to, wetlands and aquifers. (WFL) A comprehensive, multi-resource management planning process involving all stakeholders within the watershed, who, together as a group,

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cooperatively work toward identifying the watershed’s resource issues Watershed Stewardship Group (WSG) and concerns as well as develop and implement a watershed plan with Community-based groups made up of volunteer citizens, often supported solutions that are environmentally, socially and economically sustainable. by local businesses and industries, who have taken the initiative to (NSWA) protect their local creek, stream, stretch of river, or lake. These proactive Watershed Planning and Advisory Council (WPAC) groups develop on-the-ground solutions to ensure the protection of their Collaborative, independent, volunteer organizations with representation specific watersheds. (WFL) from all key partners within the watershed. Their mandate is to engage Wetland governments, stakeholders, other partnerships, and the public in Land that is saturated with water long enough to promote wetland or watershed assessment and watershed management planning, while aquatic processes as indicated by poorly drained soils, water-loving considering the existing land and resource management planning vegetation, and various kinds of biological activity which are adapted to a processes and decision-making authorities. (Partnerships) wet environment. (WRCG)

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Tri-Council Regional Growth Plan page 166 Sawridge First Nation | M.D. of Lesser Slave River | Town of Slave Lake January, 2015