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Stadium Transit Oriented Development Business Case Attachment 2 CR_1019 Stadium Transit Oriented Development Business Case Prepared by: Transit Oriented Development Planning Unit Planning + Design Section Urban Planning and Environment Branch Sustainable Development Department June 2014 Executive Summary Decades after first making the attempt, the City of Edmonton now has an opportunity to realize significant transit oriented development adjacent to the Stadium LRT Station. Achieving the optimum level of development in the area is contingent on the construction of new streets. New streets benefiting more than one owner are costly infrastructure not factored into the price of development sites in built-up portions of the city. After reviewing alternative development scenarios, Administration recommends that the City negotiate with the owner of the Muttart site regarding potential cost-sharing of construction of a new main street that connects Jasper Avenue and Stadium Road and other necessary infrastructure. Page 1 Background Transit oriented development around the Stadium LRT Station has been a municipal goal for decades. The Northeast Light Rail Transit Corridor Study of 1978 recommended “transit-oriented growth” for Edmonton and showed examples of how such development could occur around the newly opened Commonwealth Stadium and Stadium LRT Station (see Figure 1). FIGURE 1 Stadium Station Transit Oriented Development Issues, 1978 Source: Northeast Light Rail Transit Corridor Study, City of Edmonton The Stadium Station Area Redevelopment Plan, approved in 1983, provided statutory land use direction regarding transit oriented development at Stadium. By calling for higher densities and mixed use development within walking distance of the LRT station, it resulted in a zoning pattern with the highest density Page 2 permissions closest to the station and densities tapering off with increased distance from the station (see Figure 2). The 1983 plan, however, lacked a strong implementation framework. In light of the economic recession that was emerging right as the plan was adopted, very little development occurred according to the plan. FIGURE 2 Stadium Station Transit Oriented Development Density Transitions, 1983 Source: Stadium Station Area Redevelopment Plan, City of Edmonton The Boyle Street / McCauley Area Redevelopment Plan, adopted in 1994, was a community-driven, socially-minded document that sought to revitalize the two neighbourhoods after which the plan was named. The Stadium area south of 112 Avenue and west of 84 Street was included in the plan boundary and so this area was amended out of the Stadium Station plan boundary at this time. The policy direction in the Boyle Street / McCauley plan, however, was consistent with the emphasis of the earlier plan in continuing to call for high density residential / commercial development on the Muttart site and on the City-owned Stadium park and ride site, though on the latter the plan called for a transit facility and parking structure in addition to residential and commercial development (see Figure 3). The Boyle Street / McCauley plan remains the statutory plan that applies to this portion of the Stadium Station area, and the (DC1) Direct Development Control Provisions that it contains remain the zoning applying to the Muttart and park and ride sites. The DC1 provisions provide for transit oriented development on the two sites, but in line with the Boyle Street / McCauley plan they are not set up to achieve optimum development patterns in the area. By taking the existing road network as a given, they fail to significantly improve circulation patterns in the station area and thus act as a break on demand for development in the area. Page 3 FIGURE 3 Stadium Station Transit Oriented Development Concept, 1994 Source: Boyle Street / McCauley Area Redevelopment Plan, City of Edmonton In the 2000s there was new emphasis on transit oriented development, both generally in Edmonton and specifically near Stadium Station. After years of limited progress on improvements to public transit, the City of Edmonton took a major step forward by developing and starting to build a city-wide LRT system. New policies (outlined below in the Strategic Alignment section of this document) were developed that strongly called for appropriate intensification near LRT stations and other premium transit locations. In 2008 a new generation of transit oriented development planning was initiated in the Stadium area. This project sought to unlock development potential around the station by emphasizing connectivity improvements in the station area, integration of the station with surrounding development, high quality streetscapes, public open spaces and amenities. The planning process included extensive consultation with property owners, residents and other area stakeholders. The resulting plan, the Stadium Station Transit Oriented Development Concept, was presented to Executive Committee in 2012. Construction of a new main street connecting Jasper Avenue with Stadium Road was the primary element of the plan (see Figure 4). Page 4 FIGURE 4 Stadium Station Transit Oriented Development Fundamental Concept, 2012 Source: Stadium Station Transit Oriented Development Concept, City of Edmonton The post-2008 economic recession, which affected development financing and demand for apartment developments, including several proposed transit oriented developments in Edmonton, suggested caution in light of the number of large projects (Downtown, The Quarters, Blatchford, etc.) requiring City attention and investment. On April 25, 2012 Executive Committee, not ready to move the plan towards approval but also not wanting to abandon the planning effort, asked Administration to consider interim, staged options that could catalyze future Page 5 development in the area. The resulting report, which returned to Executive Committee on August 22, 2012, identified two sites – one on 106A Avenue and the other the northern portion of the Stadium park and ride site – where development could occur without prejudicing achievement of the new main street in the future. The report also showed how a pedestrian crossing of the LRT corridor in line with 85 Street could improve connectivity in the area as an interim measure. The owner of the Muttart site, which had been supportive of the Stadium Station Transit Oriented Development Concept and on which the pedestrian crossing and one of the interim development sites depended, did not agree with partial measures that had the potential of fragmenting the site. Executive Committee also did not pursue development of the northern portion of the park and ride site at the time. Page 6 Strategic Alignment Transit oriented development is strongly in alignment with the City of Edmonton’s strategic policy framework. It advances The Way Ahead strategic goals of transforming Edmonton’s urban form, enhancing use of public transit and active modes of transportation, improving livability, preserving and sustaining the environment and ensuring financial sustainability. Transit oriented development is perhaps the primary aspect of Edmonton’s development plans as outlined in The Way We Grow . The first policy in The Way We Grow relates to transit oriented development and many other policies in the document provide additional support to efforts to create communities focused on excellent transit service. Expansion of Edmonton’s LRT into a city-wide system is the boldest thrust of The Way We Move , which contains an entire chapter on the integration of transportation and land use. The Way We Live and The Way We Green have explicit policies calling for transit oriented development. The Way We Prosper does not but transit oriented development supports its strategic objectives of being globally recognized as a great place and of being a model for thriving neighbourhoods. Page 7 Benefits of Transit Oriented Development A number of individual and community benefits are expected to result from transit oriented development in the Stadium area: Individual Benefits • Increased housing choices • Increased mobility choices • Reduced transportation costs / increased disposable income • Improved health through increased physical activity (walking and cycling) • Reduced stress (through reduction in car commuting) • Potential time savings • Increased property values • Increased local shops and services • Improved accessibility to the Commonwealth Community Recreation Centre and the river valley Community Benefits • Broadened tax base (addition of commercial) and increased property tax yields • Increased transit ridership and farebox revenue • Increased value of City-owned land in the area • Increased utilization of the Commonwealth Community Recreation Centre • Reduced congestion • Reduced energy use and greenhouse gas emissions • Decreased infrastructure costs (road, parking facility and utility infrastructure) • Reduced development pressure on agricultural lands • Enhanced revitalization of existing neighbourhoods • Reduced health care costs (cost of chronic disease due to inactivity; cost of auto-related injury and disease) • Increased public safety due to increased activity and community surveillance • Enhanced tourism (through direct connection from Commonwealth Stadium to river valley) Page 8 Current Situation Since 2012 development interest has increased in the Stadium area. The former site of the GWG clothing manufacturing plant (west of 85 Street and south of 106A Avenue) is in the process of being transformed into the Edgewater development, which with two low rise buildings
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