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An Analysis of Urban Planning in the Quebec City Region and It|S Fringe Area by André Filion, Ba

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An Analysis of Urban Planning in the Quebec City Region and It|S Fringe Area by André Filion, Ba THE UNÏVERSITY OF MANITOBA An analysis of Urban Planning in the Quebec City Region and it|s Fringe Area by André Filion, Ba. Sc.A. A . thesis Submitted to the Faculty of Graduate Stud.ies l_n partial fulfíllment of the requirements for the d.egree of MASTERS OF CITY PLANNING DEPARTMENT OF CITY PLANNTNG WINNIPEG, MANTTOBA Autumn L977 - -,r/íÑ\vERsi t'-4-{nèY ãu **n*ttono - -âiÈJ LJBRi¡,t:tt2--ë*4 AN ANALYSIS OF URBAN PLANNING IN THE OUEBEC CITY R.EGION AND IT'S FRI¡IGE AREA BY ANDRÉ FILION A dissertation submitted to the Faculty of Craduate Studies of the University of Manitoba in purtiul fulfillment of the requirements of the tlegrce of MASTER OF CITY PLANNING @, 1978 Pernlission h¿s becu gratrtcd to the LIBRARY OF TllD UNIVDR- SITY OF MANITOIIA to lcnd or sell copies of this clissertation. to the NATIONAL LIBRARY Ot't CANADA to nricrolilm this dissertution and to lend or sell copies of the filnt, und UNIVËRSITY MICROFTLMS to publish an abstract of this dissertution The author reserves other publicution rights, and neither tl¡e dissertation nor extensivc cxtracts from it tttay be printed or other- wise reproduced without thc ¿¡ttthor's writtclt ¡rernrissiotr. III ABSTRACT This thesis is, as its title suggests, âfl analysis of certain planning aspects of the luletro Québec area. It is ba- sically a look at the area, its growth and evolution from a quaint tourist townto athriving area with a definite potential for the future. The underlying theme that governs this stud'y is the urgent necessity of establishing a regional forrn of a plan- ning body which will be able to effectively d.eal with the growth problems of the area. These difficulties are most evident in the regionts fringe sectors and so the stud.y takes a closer look at these particular situations in order to better illustrate inevitable planning difficulties. Tlp first chapterr "Introductory statements", contains the fundamental objective of the thesis and in order to better situate the reader, gives a brief description of the major form of urban government within the region: "La communauté urbaine de Ouébec". In the second chapter, the reader is introd'uced to the guébec area. A general description of the region¡s geo- graphical situation serves -uhe purpose of outlining its physi- cal characteristics. A certain perspective is also given of the city, s historical and socio-economic evolution, while the final part of the chapter describes the effect that the main communi- cation routes have had on the city's expansíon. The result'ing relationships that have evolved between these transportation cor- ridors and their associated fringe der¡elopments will be identi- fied thereby preparing the way for a closer examination in the following chapter. After having given the preliminary macro view of the stu- dy area in the preceding chapter, chapter three focuses on the fringe areas of the metropolitan region in question. The chapter begins by defining the fringe, its shape and the forces that have influenced its formation. It then concludes by examining the main problem signs within the fringe- A general comparison of theoretically ideal land uses as opposed to existing ones wil1 serve as an introductory basis for the legislative components which will make up some proposed prescriptions for the conflic- ting cases in the next chapter. Chapter four gives a critical overview of the Province's laws with regard to planning in general and includes an observa- tionoftheirapp1icationtourbanfringegrowth.Itexamine,s legislation dealing with Master Plans, zoning, subd.ivision by- laws as well as referring to development control, building by- laws and services control. The stud.y thenconclud.es by discus- sing the general legislative limits of regional jurisd.ictions thereby aiming at suggesting strong;er regionally oriented plan- ning reforms The final chapter gives an evaluation of the existing regional jurisdictions within the Québec City region. The exa- mination of the powers involved in present land control is made in order to properly understand. the potential difficulties in- volved in forming a regionally oriented government body wj-th greater planning-control over the region. v This thesis could not have been completed. without the collaboration of both of my principal advisors, professors .To- seph Kostka and Mario C.arvalho. Their kind ad.vice and long ex- perience in the planning fie1d. r¡lere immensely useful to me in all aspects of the thesis' preparation. I would also like Ëo express my sincere gratitude to all the members of the faculty of the Department of City Planning for the guidance and. friend.- ship bestowed. upon me. Thëir help, coupled with the practica3- aspects of planning furnished by Dave Hicks and. John $fhiting' among others, made my stay in Winnipeg a truly satisfyinç[ ex- perience As this thesis was written while the author !ìtas in Québec City, a sincere vote of thanks is also due to all those people who helped to furnish the necessary background data. f arn thin- king primarily of Mr. Serge Filion and. the'staff at the City of Québec Planning Department who always seemed to be able to find a missing link of information when it was most needed.- I would also like to thank Mr Jean Lambert, former Executive Assistant to t-he Mi"nister of Fi-nance.= for his conLinuing supporL and en- couragement. The practical aspects of this thesis' production are due to the fine work that was accomplished by Mrs Line Giguere and. Miss Francine Chamberland who must also be congratulated. not on- ly for their flav¡less typing but also for their enduring patience in deciphering the authorrs iIlegibIe scribblings- And last, but certainly the most, thank you Line, for your smile, your kindness and your love : VII TABLE OF CONTENTS Page ABSTRACT - IIÏ ACKNOWLEDGEMENTS v TABLE OF CONTENTS VIÏ LIST OF FIGURES ïx LIST OF TABLES x CHAPTER 1. INTRODUCTION CHAPTER 2. THE QUEBEC CÏTY REGTON . g 2.I Introduction - 9 2.2 Demographic Perpectives 15 2.3 Phasesin a City's Development 24 2.4 The Economic Situation .. -. r. 30 2.4.1 The Labour Force 30 2.5 Quebec's Growth Patterns 36 CHAPTER 3. THE FRINGE 45 3.1 Introduction - 45 3 .1.1 The Definition of a Fringe 46 3.2 The Quebec "Fringe" .. 55 3.3 General Relationships within the Fringe 60 CHAPTER 4. THE LEGTSLATTON: PRACTTCAT TOOLS 65 4.L Introduction o5 4.2 Planning Legislation 66 4.2.L The Master PIan 66 4.2.2 The Zoning By-Law 70 4.2.3 The Subdivision By-Law 76 4.2.4 Building By-Laws and Services Control 80 4-3 Territorial Jurisdictions of Municipa- B2 lities with regards to planning 4.3.1 Planning Boards .:.....' 84 4.3.2 The Regional Planning Boards 87 CHAPTER 5. POLICIES IN A REGIONAL COÑTEXT: AN EVALUATION AND SO¡48 PROPOSATS 90 5.1 Introduction 90 5.2 Jurisdictions within the Quebec Region 90 5.2.L Federal Entities 91 5.2.2 Provincial Entities 93 5.2.3 The Municipalities ---.. 94 5.3 Regional Change Some proPosals 9B 5.4 Proposals for better fringe area plan- ning and growth control 104 5.5 The Finat Question - Who will PaY? 106 BIBLIOGRAPHY 111 rx LI.ST OF FÏGURES Page Figure t- The Quebec Urban Community 5 Figure 2- Quebec Province 10 Figure 3- Quebecrs Geography 11 Figure 4- Quebecrs Growth Patterns 38 Figure 5- The Existing Road System 42 Figure 6- The Evolution of the Quebec Urban 57 Perimeter x LIST OF TABLES Page Table I - Metro Ouebec: Population Data L6 Table II - Metro Quebec: Population Breakdown L7 by Municipatity Table IIï - Frequency Distribution: The Number Lg of Municipalities with a given Population Table IV - Metro Quebec/ Province: Age Break- 20 down Table V - Working Force: Breakdown 22 Table VI - Vùorking Force Breakd.own for Repre- 22 entative Municipalities Table VII Quebec Region Municipalities, Po- 23 pulation changes L95L-L97L Tab1e VIII- Average Salary per Municipality, 34 T97L Table IX Quebec Region: Municipal Services 97 Table X - Principal Sources of Municipal Revenues 108 Table Xï Quebec Governmentrs Financial Assistance I09 to the Municipal Sector l. Gnprsn 1: INTROÐUCTI(]i.I 'ft has often been said that äorth America, and es- peciall1' rLs cities, is presently in the throes of a sig- nificant socio-economic ani. physical transformation. This statement becomes seff evii.ent when one examines the urban forms in today's North American cityscape. The oce dense- ty populated city of the early 20th century, has now given way to a sprawling agglomeration of urban areas and if we go slightly further back in time, the chang:e process be- comes even clearer. fn the eighteen hundreds, a city such as Québec coul-d be clearly distinguished from the relat.ively unde- veloped countrysid.e by its impressive wall. Today the ci- ty's real limits are nearly impossible to define as the imaginary line separating the developing urban area from its rural neighbour becomes even more illusory. The prob- lem is not only spaLial but also legal and social in na- ture si-nce these boundaries likewise become difficult to distinguish as they continue to fail in representing the physical ent.ity. The fringe area, of which so much is heard these days, then becomes a precursor of development problems to come. It is now genera'lly conceeded that the majority of Canada's population is urban in nature even though the pre- centage of l-and. in urban use is much lower when compared cc the other possible uses. fn fact the Gordon Commission forecasts -uhat urban centres of over i00,000 nay contain 568 of Canada's pooulation puy 1980.
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