Four documents provide important direction and policy context for the Sturgeon Valley Area Structure Plan: Sturgeon County’s Municipal Development Plan, Land Use Bylaw 819/96 as amended, and Open Space Plan, and the Municipal Government Board Order #77/98. These are discussed in detail below.

The Sturgeon County Municipal Development Plan (Bylaw 818/96 as amended) identifies a mix of land uses for the ASP area, including agriculture, country residential, and environmental protection. The environmental protection areas are generally located along the Sturgeon River. Lands within the ASP area that are within 1½ miles of the boundary of the Cities of Edmonton and St. Albert fall within the Intermunicipal Fringe area which requires joint review for the approval of any development activities.

The Sturgeon County Municipal Development Plan is the overall statutory plan for the County, and includes general objectives and policy direction for the preparation of an area structure plan for the Sturgeon Valley. One of its over-riding goals is the need to establish compatible land use patterns which make efficient use of land, infrastructure and services and contribute to the overall well-being and viability of the community. This goal is also embodied in the policies of the new planning legislation. In addition to this goal, the Municipal Development Plan includes nine policy statements which provide a framework for future growth and development within the Sturgeon Valley. The policies are as follows:

• reduction in potential conflict between agricultural and other land uses by establishing setback distances;
• diversity of residential land use options, in locations proximate to service and employment centres;
• encouragement of commercial development where appropriate within an urban-like setting or outside an urban-like setting as highway commercial;
• consideration of partnership agreements with adjacent municipalities to develop recreational facilities where such facilities will mutually benefit both rural and urban residents;
• optimization of public access to natural open space resources and municipal reserve lands;
• protection of the environmental integrity of the County’s river systems;
• planning and management of safe and efficient transportation and utility systems in cooperation with Alberta Transportation and Utilities and neighbouring municipalities;
• working cooperatively with neighbouring urban municipalities in the provision of community services in a more cost efficient manner.

Land uses within the municipality are regulated under the provisions of the Sturgeon County Land Use Bylaw 819/96 as amended. The Bylaw has recently undergone a review and revision, with amendments to ensure that the districting provisions are in accord with and responsive to current conditions and circumstances. Generally, the land use districts as established through the Land Use Bylaw correspond very closely with the existing land use pattern within the Sturgeon Valley ASP Area. The existing districting of lands within the Sturgeon Valley area are illustrated in Map 4.2 – Existing Land Use.

In the Sturgeon County Land Use Bylaw, the ASP area is comprised of lands designated as Agricultural, Agricultural – Nature Conservation, Country Residential 1 and 2, and Intermunicipal Fringe. Generally those lands located immediately adjacent to the Sturgeon River are designated as Agricultural – Nature Conservation, with pockets of country residential just outside these areas and the remaining lands being designated as agricultural.

The appropriate redistricting of the land within the ASP area will occur subsequent to approval of the Area Structure Plan by bylaw to ensure consistency between the ASP and Land Use Bylaw.

The Municipal Government Board Order sets out the following: those matters appealed by the municipalities of Edmonton, St. Albert and Morinville; key jurisdictional issues; and the Board decision relating to the ASP area.

The Municipal Government Board Order identifies Edmonton’s and St. Albert’s concerns regarding the potential detrimental effects of Bylaws 818/96 and 819/96 on their municipalities. Some of the concerns raised through the appeal hearings are applicable and should be considered in conjunction with the future planning for the Sturgeon Valley Area Structure Plan. In this section, the relevant concerns about potential detriment are described by municipality as follows:

Edmonton submitted that the following provisions could potentially have a detrimental effect::

(a) Scope of Intermunicipal Planning:

• Absence of an opportunity for meaningful consultation between Sturgeon and Edmonton.
• Failure to provide an opportunity for consultation on land use impacts that do not fall within the fringe area, but extend beyond the shared boundary, encompassing major transportation corridors, and regional assets.

(b) Cumulative Impacts of Country Residential Land Use:

• Need for the preparation of a comprehensive area structure plan for the Sturgeon Valley area which will address concerns raised by Edmonton relating to piecemeal subdivisions, uncertainties as to the amount and location of future subdivisions and the impact of such developments on urban neighbors. Without an area structure plan, Edmonton’s efforts to plan development and infrastructure improvements within Edmonton would be hampered.

(c) Protecting the Integrity of Major Transportation Corridors and Facilities:

• Absence of detailed and specific policies which would encourage coordination of roadway development would not allow Edmonton to plan its major transportation corridors and facilities.

(d) Location of Industrial and Commercial Land Uses:

• Absence of detailed and specific policies relating to the location of industrial and commercial development would not allow Edmonton to plan for the impacts of these uses either through adequate separation or by ensuring compatibility of land uses.

(e) Environmental Protection:

• Absence of a policy to deal with the recognition, protection and preservation of environmentally sensitive areas.

St. Albert submitted that the following provisions could potentially have a detrimental effect:

(a) Scope of Intermunicipal Planning:

• Absence of effective mechanism to deal with the coordination of land use, future growth patterns, and other infrastructure. Fringe development must be integrated with adjacent municipalities or there is a risk of social polarization and division.

(b) Impacts of Country Residential Land Use:

• Lack of coordination with St. Albert’s planning scheme will cause: traffic and sanitary sewer problems, risk of groundwater contamination, fragmented parcels which make integration difficult and rural development standards that are incompatible with urban standards.
• Lack of detailed planning and policies may result in land use conflicts and the inefficient and costly provision of hard servicing or retrofitting.

(c) Impacts of Industrial Development:

• Lack of coordination with St. Albert’s planning scheme will cause traffic and environmental problems, land use incompatibility and rural development standards that are incompatible with urban standards.
• Lack of locational criteria for specific use proposals and detailed planning requirements.

(d) Impacts of Commercial Land Uses:

• Big box retail along Highway 2 access to St. Albert will affect traffic flows into and within St. Albert.

(e) Impact on Transportation:

• Lack of coordination with St. Albert’s transportation planning could increase congestion and result in a duplication of capital expenditure on roadways. (Of particular concern are Sturgeon Road and Bellerose Drive).

(f) Economic Impacts:

• There are no intermunicipal agreements in place for County residents to use St. Albert’s urban services including emergency services, garbage removal, cultural and recreational facilities and infrastructure. The use of urban services must be designed into St. Albert’s system and an appropriate share of costs associated with development must be borne by the County. (Note: since St. Albert’s submission, Sturgeon County and St. Albert have signed an ambulance agreement.)

In making its decision, the Board found detriment in that adequate provision was not made in the Municipal Development Plan for consultation with neighbouring municipalities. The remedies put forward by the Board are as follows:

1. that within 6 months of the Board Order, development of an Area Structure Plan for the Sturgeon Valley Area shall be commenced and be completed within 18 months;
2. that preparation of the area structure plan shall be guided by a steering committee composed of representatives from Sturgeon County, the City of Edmonton, the City of St. Albert, Alberta Transportation and Utilities and other persons having a reasonable interest in the Study Area;
3. that the area structure plan shall address questions of supply and demand, and provide for the following:

1. the amount, location, phasing and density of future country residential subdivisions;
2. utility servicing;
3. demands for educational, recreational and social services;
4. transportation issues and impacts;
5. impacts on nearby urban centres; and
6. other land uses such as trails, open space, agriculture; and procedural matters dealing with the plan process and plan implementation matters, such as referrals, plan amendment and repeal.
   
   

The Municipal Open Space Plan, approved in September 1992 by County Council, set forth a series of guiding principles and a policy framework to direct future open space development within the County and the Sturgeon Valley. Overall, the Plan directed that land use strategies and development initiatives be considered with an eye to drawing a critical balance between preservation and use. The following statements form the guiding principles for open space development within the Sturgeon Valley:

• endeavor to retain outstanding natural features such as the Sturgeon River Valley for the amenity of the community;
• discourage incompatible public and private land uses from locating or expanding in river valleys;
• increase community access to the river valleys and lakeshores as opportunities arise;
• oppose subdivision on land which is considered to be within the 50 year flood hazard zone as a means of preserving the open space character of the river valley and its potential for recreational use;
• endeavor to locate recreation facilities and areas within convenient access of existing major roadways;
• encourage development of parks and/or sports facilities on country residential reserve parcels which are of suitable size and appropriate;
• endeavor to acquire abandoned railway right-of-ways which may be used for recreational purposes; and
• support the efforts of government, other agencies and local municipalities to protect the natural environment and improve the recreational potential of the Sturgeon River Valley.

The guiding principles support recreational use and the preservation of open spaces for:

• environmental interpretation areas which could be developed to meet demands for outdoor education, interpretive, and nature related observation;
• linear corridor development along the Sturgeon River;
• access and staging areas for recreational corridors;
• development of parks and/or sports facilities on country residential reserve parcels which are of suitable size and appropriate; and
• historical and cultural interpretation associated with the Lac St. Anne and the Athabasca Landing Trails along the Sturgeon River.