bylaw 1248/11 villeneuve area structure plan bylaw sturgeon county

 BYLAW 1248/11 VILLENEUVE AREA STRUCTURE PLAN BYLAW STURGEON COUNTY, MORINVILLE, ALBERTA TO MANAGE GROWTH AND DEVELOPMENT IN THE HAMLET OF VILLENEUVE AND ADJACENT AREA, INCLUDING VILLENEUVE AIRPORT BYLAW 1248/11 BEING A BYLAW OF STURGEON COUNTY, MORINVILLE, ALBERTA FOR THE PURPOSE OF ADOPTING AN AREA STRUCTURE PLAN FOR VILLENEUVE HAMLET. WHEREAS, the Municipal Government Act, R.S.A. 2000 C.M‐26, and amendments thereto authorize Council to establish and amend Area Structure Plans. AND WHEREAS, the proposed amendments were advertised in June 14th and 21st, 2011 and October 4th and 11th, 2011 editions of the Free Press newspaper and June 15th and 22nd, 2011 and the October 5th and 12th 2011 and editions of the St. Albert Gazette and circulated to adjacent landowners in the area of the subject lands. AND WHEREAS, a Public Hearing was held at 7:00 p.m., June 28th, 2011 and 7:00 p.m. on October 25, 2011 at the Villeneuve Community Hall, Villeneuve, Alberta. AND WHEREAS, the Council of Sturgeon has deemed it desirable to adopt the Villeneuve Area Structure Plan Bylaw 1248/11 to plan and manage growth and development of the Hamlet. NOW THEREFORE BE IT RESOLVED, that the Council of Sturgeon County, hereby enacts that: 1. The Villeneuve Area Structure Plan (dated May 2011, as per Schedule A) be adopted as Bylaw 1248/11. That this Bylaw shall come into force and take effect upon the date of third reading and signing in accordance with Section 213 of the Municipal Government Act, R.S.A. 2000 C.M‐26, and amendments thereto. Read a first time this 24th day of May, 2011. Read a second time this 28th day of February 2012. Read a third time this xx day of xxxx 2012. MAYOR COUNTY COMMISSIONER Final Draft Report
Prepared for: Sturgeon County Planning and Development Services
Prepared by: Urban Revision Consulting Inc
May 16, 2011
Table of Contents
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Table of Contents
1.0 Introduction
1.1 Study Objectives
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1.2 Principles for Preparation of an ASP
2.0 The Planning Area
2.1 Development Issues
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3.0 Legislation
3.1 Applicable Legislation .
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3.2 Capital Regional Board Land Use Plan
3.3 Municipal Development Plan
3.4 Land Use Bylaw
3.5 Approved ASPs – Calahoo-Villeneuve Sand & Gravel Extraction ASP .
3.6 Approved Outline Plans – West Villeneuve Outline Plan
3.7 Villeneuve Airport Master Plan
3.8 Villeneuve Airport Federal Zoning Regulations
4.0 Public Consultation
4.1 Earlier Consultations .
4.2 2010 Consultations
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5.0 Development Concept
5.1 The Vision for the Hamlet
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5.2 Key Elements of the Development Concept
5.3 The Process of Amending the Primary ASP
6.0 Development Policies
6.1 Hamlet Residential
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6.2 Hamlet Commercial
6.3 Hamlet Reserve
6.4 Hamlet Industrial
6.5 Hamlet Open Space and Recreation
6.6 Infrastructure
6.7 Transportation
6.8 Villeneuve Airport
6.9 Sand and Gravel Extraction
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7.0 Development Phasing
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8.0 Plan Implementation
Appendices
A – April 15, 2010 Public Meeting Notes
B – May 13, 2010 Public Meeting Notes
Figures
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1. Regional Context
4
2. Planning Area
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3. CRB Regional Growth Map
16
4. Calahoo-Villeneuve Sand & Gravel Policy Areas
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5. Villeneuve Airport Concept Plan
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61
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6. Clustered Residential Design
7. Development Concept
8. Mainstreet Commercial Streetscape
9. Open Space Design Concept
10. Accommodating Parking in Clustered Designs
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1.0 Introduction
Villeneuve is a hamlet located in the west half of Sturgeon County, approximately 8 km west of St Albert
and about 16 km northwest of the City of Edmonton. It is situated on the west side of Highway 44 at
Highway 633, about 10 km north of Highway 16, the Yellowhead Highway (See Figure 1). To the west of
the hamlet at a distance of about 1.6 km lies the Villeneuve Airport. The airport is owned and operated
by the Edmonton Regional Airport Authority (Edmonton Airports).
The hamlet also contains St Peters Catholic Church and rectory, West Country Hearth, a senior’s
residential complex and the Villeneuve Athletic Association Recreation Hall with ball diamonds, a half
size ice rink and a soccer pitch. The Villeneuve Groceteria, a grocery store with gas pumps is located
across from the church.
According to the 2008 Civic Census, the existing hamlet including the West County Hearth senior’s
residence had a population of 225.
The Villeneuve ASP has been prepared to manage growth the County anticipates in the area of the
hamlet over the next 20 to 40 years. Villeneuve has been identified in the new Capital Regional Board
Land Use Plan as being a community suitable to accommodate growth and the County MDP likewise
identifies Villeneuve as a location for future development. Recent and planned expansion of the
Villeneuve Airport on airside facilities and new industrial development along with investment by
residential developers confirm the potential of Villeneuve. Growth would appear to be coming to
Villeneuve and without a management framework to guide it, the existing community could be
dramatically altered.
In 2005, a process was initiated to prepare a Villeneuve ASP. A public consultation program was set up
and several meetings held with area residents. A draft plan was prepared from inputs received during
that process and it went to Public Hearing in late 2007. Sturgeon County Council eventually moved to
give first reading to a bylaw to adopt the Plan, but it was defeated because of concerns that input to the
draft was not received from certain groups of stakeholders. The process of developing this ASP builds
on public input received during that earlier process, but has provided additional opportunities for all
stakeholder groups to offer guidance to the author of the Plan.
At the time of writing of the Villeneuve ASP, the Planning Area lands currently fall within the CalahooVilleneuve Sand & Gravel Extraction ASP (C-VASP) prepared by the County and approved in October
2001. When the Villeneuve ASP is advanced for adoption by Sturgeon County Council as a new County
bylaw, Council will be provided with an amending bylaw to the C-VASP to adjust the definition of uses
requiring the 800m buffer and clarify certain details to allow currently zoned resources to be extracted.
The Sturgeon Municipal Development Plan and the Land Use Bylaw will also require amendments.
1.1 Study Objectives
The objectives of the Villeneuve ASP, based on input from all the stakeholders indicate what
development will occur in the hamlet and how that development will be managed. The objectives of
the Plan are as follows:
1.1.1 Sustainability - To support sustainable development that encourages environmental stewardship,
economic development, social conscience and fiscal responsibility.
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Environmental Stewardship
It is the intent of the Plan to preserve and protect the natural environment during development and
expansion of the hamlet by limiting erosion or pollution through mitigative measures, preserving
contiguous natural features and integrating them into amending development, supporting County
environmental initiatives, supporting innovative design, construction and operational technologies to
reduce emissions and managing land use patterns to reduce reliance on vehicles. The Plan supports
preservation of agricultural lands and the extraction of natural resources prior to hamlet development in
accordance with County policy.
Economic Development
It is the intent of the Plan to establish a supply of land to sustain a variety of economic development
activities that will support individuals and families in the expanding hamlet and support the Region’s
economic development goals for regional prosperity. This expansion is consistent with Plans for
expansion by the Edmonton Airport Authority and the local sand and gravel industry.
Social Conscience
It is the intent of the Plan to create an inclusive and healthy community that supports walking and biking
through multipurpose trail developments and parks integrated within new development. New
development will incorporate and plan for public transit support facilities and encourage and support
innovative and green design solutions for neighbourhoods and buildings.
Fiscal Responsibility
It is the intent of the Plan to promote a fair allocation of costs for new development between the
developer, new residents and any other direct beneficiaries of new or expanded municipal services and
facilities expected at Villeneuve.
1.1.2 Development Patterns -To establish a development concept for the Hamlet that identifies future
land uses and development patterns.
It is the intent of the Plan to guide future development in accordance with the vision identified by
stakeholders in the Plan and to establish land use allocations that compliment and reflect the Plan
objectives. The plan will integrate low and some medium density residential land uses within a more
compact community in accordance with the principles identified in the Capital Regional Board Plan and
within a smaller development footprint than was historically provided.
1.1.3 Development Policy - To identify and establish development policies which will guide
development in accordance with the community vision for Villeneuve.
It is the intent of the Plan to encourage a high quality of life, high quality design and development,
maintain and extend the key elements of the existing rural residential lifestyle to new development and
to provide a safe and secure community for residents and visitors.
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1.1.4 Transportation - To establish an efficient and safe transportation network and management plan.
It is the intent of the Plan to integrate a safe and efficient transportation network with the land uses
identified for the future hamlet, to support the expansion of transit services to the Planning Area, to
segregate airport and industrial vehicle traffic from hamlet residential traffic where possible and to
establish Villeneuve as a walkable community. It is also the intent of the Plan to mitigate and manage
noise from highway traffic and airport activity where possible.
1.1.5 Infrastructure - To identify and plan for the expansion and upgrading of municipal and utility
infrastructure.
It is the intent of the Plan to support growth with integrated municipal service infrastructure that
maximizes the use of and augments existing infrastructure and is based on cooperation with adjacent
municipalities and other regional partners to improve efficiencies and minimize infrastructure costs.
1.1.6 Open Space - To establish a plan for parks and open space that integrates community facilities and
land uses within a walkable and compact community.
It is the intent of the Plan to integrate natural features, multi-purpose trails, parks, open space and
community facilities within the hamlet into a network of trails to create a walkable and compact
community with less reliance on vehicle traffic. The plan should identify protect and prioritize lands for
regional infrastructure that permits the beneficial and cooperative development of the hamlet in
support of regional public investment. It should also support accessible recreational facilities for a broad
range of residents and age groups.
1.1.7 Commercial - To develop a plan for commercial services appropriate to the future size of the
hamlet and the needs of future residents and businesses.
It is the intent of the Plan to support accessible commercial development that creates a sense of place in
the community by safely integrating it with pedestrian and vehicular movement networks and includes
community space and facilities. Commercial development should reflect a traditional Alberta
Mainstreet concept with mixed use development serving the resident and business communities and
the airport.
1.1.8 Growth and Expansion - To support the intent of the Sturgeon County Municipal Development
Plan for Villeneuve as a location for future development in western Sturgeon County.
It is the intent of the Plan to manage growth at Villeneuve that is contiguous to the existing hamlet and
airport facilities, follows the intent of the principles and policies of the CRB Land Use Plan and the
Sturgeon MDP, is approved for development with an appropriate level of service and infrastructure
expansion and will not adversely impact the provision of regional infrastructure required to service
Regional Priority Growth Areas.
1.1.9 Collaborative - To establish medium and long range development plans that promote and allow
for collaboration between the community and various area stakeholders.
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It is the intent of the Plan to create a framework for growth of the hamlet that is based on a
collaborative and cooperative effort between a variety of stakeholders including residents, commercial
operators, developers, not for profit community organizations, regional commissions and interests,
municipalities and other levels of government and beneficiaries of growth located outside the hamlet.
1.2 Principles for Preparation of an ASP
In order to accomplish the Villeneuve ASP objectives, a conceptual approach was utilized that
incorporated a number of guiding principles.
1.2.1 Consultative – the ASP will not only affect the Hamlet of Villeneuve residents, but also surrounding
landowners, tenants and others with interests in and around the Plan Area. Consequently, the ASP
preparation process should provide a variety of opportunities for stakeholders to be involved and
contribute to the final ASP.
1.2.2 Long Range – the ASP should provide direction and guidance for future land uses to ensure the
long-term needs of the Community are met and allow for long term solutions.
1.2.3 Visionary – the Villeneuve ASP preparation is based on a “vision statement” that was developed by
the Villeneuve area stakeholders. This statement identifies residents’ preferred future for the area and
serves as a guide to the development concept for the hamlet.
1.2.4 Collaborative – this plan acknowledges the collaboration of Sturgeon County, residents,
developers, area businesses and Edmonton Airports as well as all other stakeholders.
The Villeneuve ASP is a “Primary” ASP. It has been prepared and approved prior to any new
development of a significant nature taking place in the hamlet. It is the framework providing direct
guidance for other secondary or amending ASPs that will provide the detailed design for new residential
and other development within the hamlet. The framework consists of development objectives, a vision
and development concept incorporating a future land use plan and a set of policies that establish how
development should occur within the planning area.
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2.0 The Planning Area
The purpose of the Area Structure Plan (ASP) is to create a planning tool that reflects landowner and
stakeholder aspirations and addresses opportunities and constraints for future growth and development
within the Hamlet. The ASP Planning Area includes the Hamlet, Villeneuve Airport, lands in between
and lands to the east of Highway 44(see Figure 2).
The population within the Planning Area for the ASP (as opposed to the hamlet) was 245 in 2008. This
population was accommodated in 131 residential units that included predominantly single family but
also duplex and apartment units, the latter located in the West Country Hearth Senior’s complex.
The Planning Area land uses are predominantly agricultural outside of the airport lands and the existing
hamlet. When the Villeneuve ASP is given 3 readings by County Council and approved as a County
Bylaw, the boundary of the Hamlet as defined under the Municipal Government Act of Alberta, will be
expanded to include all the lands within the ASP Planning Area.
2.1 Development Issues
A number of development related issues were identified by stakeholders in the 2005 to 2008 process
and augmented / underlined in the 2010 consultation process. Each issue was categorized into eight
groups of issues and the issue source was divided between three perspectives: Developers, County/
municipal and residents. The issues are presented here to illustrate the most significant concerns
associated with development of the hamlet for each of the key groups – Those who plan and develop
the new community, those who manage that process and take over operation of the infrastructure and
services and those who have to live with the results over the long term.
It should be noted that both residents and developers form groups with a broad range of opinions that
may not be unified or even shared between members of that group. The description of issues does help
to identify the range of concerns expressed during the consultation process and provide some idea of
the perspectives that had to be dealt with in preparing the Plan.
2.1.1 Density of Development - Developers have indicated lot sizes in the hamlet residential zoning
need to be adjusted to incorporate low and medium density residential development types and that
single family lot sizes need to be smaller to accommodate current market product efficiently. They also
note that a density of at least 600 units per quarter section is required to make a project economic.
The County notes that urban style development will change the types and level of service required from
the municipality and also the costs of providing services. For example, volunteer firefighting services out
of Calahoo are not well located to deal with urban density fire suppression in Villeneuve. There is also a
concern that new residents will demand urban level services the County does not currently provide,
increasing the fiscal impacts of development at Villeneuve on the existing County tax rolls. There are
also concerns that existing rural and hamlet residents will demand similar levels of municipal services to
those offered to new Hamlet residents, further increasing costs.
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Residents have clearly indicated they want no high density development, specifically apartments and
multiple housing. More open space is necessary to buffer older low density development from newer
land uses. Some acknowledge that smaller units and duplex or limited townhouse development would
be ideal as a stepping stone for independent senior’s accommodation at or near West Country Hearth.
Others have pointed out that large lot sizes may be attractive, but there are implications on the costs of
development. It is not the resident’s intent that land values or home values would be diminished as a
result of new growth.
2.1.2 Traffic and Transportation Related Concerns - Developers have noted that access to new
subdivisions is limited on Highways 44 and 633 and so access to Villeneuve Road, north and south is
necessary to provide adequate access to new development
It was acknowledged that Highways 44 and 633 are Provincial Highways and are controlled by Alberta
Transportation.
Residents indicate that there is too much traffic on Highway 44 and 633 near housing and at the
intersection of Highways 44 and 633 for the current design. They have great concerns about traffic
safety related to speed limits and intersection design. They also have concerns about traffic speed on
both highways. The community does not have sidewalks so there are issues with mixing pedestrian and
non-vehicular(senior’s carts) traffic with traffic on the roads as well as the numbers of cars and trucks on
hamlet streets. It is felt that new growth will exacerbate the traffic related problems as traffic levels
increase. Gravel trucks, which come for commercial services bring noise and dust into the community.
2.1.3 Noise from Airports and Highway Traffic - Developers have indicated they share resident concerns
over noise from the airport and highways in the area, but note that new buyers are unlikely to be as
sensitive to the current situation. There are also concerns raised by developers that there be some type
of standard to identify what lands are developable at the end of the airport runways and what lands are
not developable. As there is no scheduled traffic at the airport, there is no information to create an NEF
contour, the typical manner of identifying developable and non-developable lands off the ends of
runways.
The County notes that the hamlet residential areas must provide a safe and healthful residential
environment for residents that meets current applicable noise standards established by CMHC and
other organizations providing criteria for new development.
Residents indicate that noise from Villeneuve and the heliport as well as local private airstrips disrupts
the community. Highway traffic noise is a constant 24 hour a day intrusion. They also note that air
traffic flying over the community is a safety concern as well.
2.1.4 Water and Wastewater Facility Extensions - Developers note that regional service extension is the
only option for providing services to meet the projected residential, commercial and industrial growth.
There are concerns that the initial phases of residential development will not cover the high cost of
service extensions and new growth will be stalled while financial options are identified and secured.
There is some capacity for infill of 35 to 50 units that might be enough to accommodate an initial phase
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of new units. The initial phases of airport industrial development will not cover service extension costs
either.
In 2008, the County noted that the estimated costs of extending water and wastewater service
connections from Parkland County are $11M in 2008 dollars. They have no formula for allocating the
remaining limited service capacity in the hamlet. The County also has issues with determining the most
efficient and effective way to handle storm water drainage in the area.
Residents note that they have paid for existing service upgrades and service levels and do not wish to
pay any more for the services they now have. They suggest the existing excess capacity is designated for
internal Hamlet expansion as they have paid for it in their collective levies.
2.1.5 Prospects for New Facilities in Villeneuve - Developers point out that new development can
contribute to new facilities in Villeneuve for the benefit of new and existing residents, but they cannot
cover all the costs.
The County has no issues with the provision of new facilities in Villeneuve where they are justified and
paid for by the beneficiaries or willing agencies or donors.
Residents note that existing schools are out of the community in St Albert, Edmonton and Namao. The
School age population is increasing but not enough to justify a school without additional residential
growth. The existing community hall has been expanded but new community and sports facilities are
needed to accommodate increases in the number of residents.
2.1.6 Airport, Commercial and Industrial Development Issues - Developers and landowners ask how
much commercial land uses will be permitted in the new areas and where. They suggest that land uses
at the ends of the runways be restricted to industrial and highway commercial land uses.
The County asks what level of commercial development is appropriate for a growing hamlet. It has been
suggested that development east of Hwy 44 be restricted to industrial/commercial to limit pedestrian
crossings of Hwy 44. Access in those lands east of Hwy 44 should be restricted to entry and egress from
Hwy 633 only and lands north of the CN line could have Hwy 44 access at the quarter section line which
is an existing T intersection.
Residents wonder whether airport, commercial and industrial development will conflict with the
expansion of the hamlet residential areas. They ask how much commercial development is adequate to
support expanded residential in the hamlet. They also ask where these lands should be located. Some
residents support expansion of the airport and others do not as they feel it is not needed.
2.1.7 Growth Related Issues and Concerns - Developers have stated that concepts such as Conservation
Design are inefficient in a winter climate and they suggest weed control is difficult. They also note that
Conservation Design is counter-productive to development approaches followed in Edmonton.
Sturgeon County notes that a location to accommodate growth and offer services from is needed in
western Sturgeon. The County has concerns about managing growth and the costs of expansion. There
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are also concerns about how the County can work with developers to ensure proper servicing and
transportation networks. Finally, the County agrees that a modified clustered development approach
could work in the hamlet.
From the resident’s perspective there are several issues related to growth. Large numbers of new units
added to Villeneuve will change the community. There are concerns that semi-detached, duplex and
row housing units will bring different people to Villeneuve and change the community. There are
concerns that St Albert will grow out to Villeneuve and there is a greater awareness of growth and fears
of what it will do to the community. There is a desire to preserve the hamlet and its lifestyle, but
uncertainty about how to proceed to do that. Concerns have been expressed about the form and
amount of future development. It was noted that there are many in the hamlet whose vision does not
include hamlet growth. Residents have expressed a desire to see more than just starter homes and at
lower than urban densities.
Residents have been very supportive of the Conservation Design concept and principles that would
apply in new areas. Conservation Design is a form of clustered development as described by Randall
Arendt. Its use at Villeneuve requires some modification to support a more urban concept with
abundant open space, but, with municipal services and small lots, can provide the basis for a strong
community and help fulfill the vision presented in the Plan. An illustration of a clustered development is
presented in Figure 6.
Some feel that the hamlet should simply identify how 300 units and 1000 people should be
accommodated, along with the traffic they generate. There is a question as to whether the proposed
amount of new development is a reasonable amount to be accommodated in the near future. There are
concerns and issues with how new development will be blended with existing development. It was
noted that the ASP is about quality of life and it needs to work for the existing residents. There are fears
that they will be forgotten in the upcoming expansion and growth. Many feel that it is not unreasonable
to ask that the things that attracted existing residents to Villeneuve be incorporated into newly
developing areas.
2.1.8 ASP Process Concerns - Developers note that a need exists to restart the earlier process with all
landowners participating this time if we are to have a good plan.
The County points out that all landowners must have an opportunity to participate in the ASP planning
process and that did not happen in their opinion in the earlier process. Notification of the process and
any meetings is key to a successful planning process. The community needs participate in the ASP
process if they want results they like.
Residents indicated that notification in the earlier process was an issue and that real engagement on the
plan is required, not just consultation. There is a need for agricultural land owners to have input in the
second process.
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3.0 Legislation
The following legislation from the Federal , Provincial, Regional, Local and Corporate levels has been
identified as applicable to the development of a comprehensive plan for the Hamlet of Villeneuve. In
the case of Villeneuve, the provincial legislation is the basis for local planning authority at the regional
and municipal (County) level. The Land Use Plan adopted by the Capital Regional Board provides
direction to the objectives, policies and implementation of the Villeneuve ASP, as does the Sturgeon
County Municipal Development Plan. All statutory plans adopted by a municipality must be consistent
with each other.
The Villeneuve Airport Master Plan is a corporate plan effecting the long term operations of Edmonton
Airports at Villeneuve. Likewise, the Villeneuve Airport Zoning Regulations have been enacted by the
Federal Government to ensure the safe operation of the airport and aircraft under the Federal
Aeronautics Act and implemented via registration on land title. The Master Plan has been summarized
for implementation in this Plan. The Villeneuve Airport Zoning Regulations are registered on title as an
encumbrance on all property titles affected by the zoning regulations.
3.1 Applicable Legislation
The Villeneuve Area Structure Plan (ASP) has been prepared pursuant to Part 17 of the Municipal
Government Act (MGA) provincial requirements outlined in s.633 (1), s.636 (1) and s.692 (1) of the
Municipal Government Act (Revised Statutes of Alberta, 2000, Chapter M-26).
The Act states:
633(1) For the purpose of providing a framework for subsequent subdivision and development of an
area of land, a council may, by bylaw, adopt an area structure plan.
(2) An area structure plan
(a)
must describe
i. the sequence of development proposed for the area,
ii. the land uses proposed for the area, either generally or with
respect to specific parts of the area,
iii. the density of population proposed for the area either generally
or with respect to specific parts of the area, and
iv. the general location of major transportation routes and public
utilities,
and
may contain any other matters the council considers necessary.
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An Area Structure Plan is a statutorily sanctioned land use plan that provides sufficient detail on land
use; density of development; service infrastructure including roads, municipal services and utilities;
timing and phasing of development to assist the municipality in managing new development and
ensuring compatibility with the provisions of the Municipal Development Plan. Adoption of a plan by a
municipal council also requires that public notification be given and a specific process be followed with
respect to receiving input from any persons affected by the plan preparation process. The municipal
Council presiding over the planning area jurisdiction must hold a public hearing on a proposed ASP
bylaw prior to second reading of the bylaw.
3.2 CRB Land Use Plan
The Villeneuve ASP has been prepared pursuant to Part 2 of the Alberta Land Stewardship Act (ALSA) Act
provincial requirements outlined in Sections 15(1) and 20(2) of the ALSA(Statutes of Alberta, 2009
Chapter A-26.8). Section 15(1) requires local government bodies, decision makers and all other persons
to conform to an adopted regional plan. Section 20(2) requires every local government body affected by
a regional plan to implement new initiatives (such as the preparation of a new ASP) in compliance with
the approved regional plan
On April 15, 2008, the Government of Alberta established the Capital Regional Board and directed the
25 member municipalities to prepare a Regional Growth Plan. The Plan, Growing Forward was
submitted to the Minister of Municipal Affairs with four key components: land use, intermunicipal
transit, housing and geographic information systems. This Plan provides a vision for the future of the
Capital Region and represents a significant level of cooperation and commitment by each municipality,
of which Sturgeon County is one. While the Regional Growth Plan does not have the status of a regional
plan under ALSA, for the purposes of development of this ASP that status has been assumed.
The Board developed a vision and overarching strategic principle to guide decisions on land use and
optimize priorities. These can be viewed at the Board web site at www.capitalregionboard.ab.ca along
with the land use plan and recent amendments. The essence of the Plan is summarized in six land use
principles that were adapted from the vision and strategic principles.
3.2.1 Protect Environment and Resources
o Preserve and protect the environment
o Preserve agricultural lands
o Protect natural resources
o Minimize the impact of development on regional watersheds and airsheds
o Minimize the impact of heavy industrial developments.
3.2.2 Minimize Regional Footprint
o Identify, protect, and prioritize lands for regional infrastructure
o Concentrate new growth within Priority Growth Areas
o Allow growth outside of Priority Growth Areas
o Support expansion of medium and higher density residential housing forms
o Support cluster country residential development
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3.2.3 Strengthen Communities
o Create inclusive communities
o Support healthy communities
o Support public transit
o Support innovative and affordable housing options
3.2.4 Increase Transportation Choice
o Integrate transportation systems with land use
o Support the expansion of transit services in various forms
3.2.5 Ensure Efficient Provision of Services
o Design integrated physical infrastructure within the region
o Maximize utilization of existing infrastructure
3.2.6 Support Regional Economic Development
o Ensure a supply of land to sustain a variety of economic development activities
o Attract and retain individuals and families with a diverse range of skills to the Capital
Region to satisfy the region’s economic development goals
o Support regional prosperity
o Position the Capital Region competitively on the world stage
In addition to the Stakeholder’s vision and objectives, these six land use principles offer primary
guidance for a new development concept for the Villeneuve ASP planning area. Sturgeon County, after
consultation with its regional neighbours, is led to believe that there is support for growth at Villeneuve
because of its regional attributes.
In an addendum to the Land Use Plan: Growing Forward, dated October 2009, the CRB identified a
number of Priority Growth Areas (PGA) and Cluster Country Residential Areas (CCRA) that are the focus
for regional growth and intensification of development. The addendum identifies criteria to ensure
increased density in PGA’s and a minimum footprint for development, the key element being density
targets and other standards for transit and node development. Villeneuve is not identified as a PGA or a
CCRA. It is specifically listed on the PGA and CCRA Map as being one of several rural communities where
growth is allowed outside of the PGA’s. These communities are footnoted as being County hamlets and
residential areas identified in Municipal Development Plans for growth. In table 3 of the October 2009
addendum, it specifically states that for any other areas outside PGA’s, CCRA’s and traditional country
residential areas, there are no density targets. Figure 3 of this Plan replicates the addendum graphic
showing Priority Growth Areas and Cluster Country Residential Areas.
The addendum also includes a cost sharing formula for transit that encompasses both operating and
capital costs and addresses matters essential to the creation of a regional transit network. Sturgeon
County, as a participant in the Capital Regional Board with a designated PGA/CCRA may pay annual
charges under the cost sharing formula and might expect benefits such as park and ride services as a
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result. Facilities to support the provision of transit services are required in the communities where
these services are to be offered to enable service provision.
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3.3 Municipal Development Plan
The MGA defines and provides direction for the preparation of a number of statutory plans. The
Municipal Development Plan (MDP) is a broad plan, covering the entire municipal jurisdiction and
addressing future land uses, development, infrastructure, growth patterns, transportation networks and
the provision of municipal services and facilities. Area Structure Plans cover only a part of the area
covered by the MDP, take guidance from the MDP and are required to conform to and be consistent
with the MDP. ASPs provide a framework for subsequent subdivision and development of an area of
land and as such are more detailed than an MDP.
The Villeneuve ASP must be consistent with approved County Council policy contained in the Sturgeon
Municipal Development Plan (MDP). The MDP was adopted as Bylaw 818-96, and as amended, states
that:
“Sturgeon County will establish land use patterns which make efficient use of
land, infrastructure, public services and public facilities; and which contribute to
the development of healthy, safe and viable communities by encouraging
appropriate mixes of all land use types and a wide range of economic
opportunities”.
The Villeneuve ASP complies with the objectives and policies of the Sturgeon County MDP.
Section 6.1 of the MDP identifies Villeneuve as a potential growth location and suitable for
future development, which establishes the principle requirement for the Primary ASP. The MDP
requires amendment of Section 6.1 to permit industrial development to occur at the Villeneuve
Airport and on any other lands within the Hamlet. The Sturgeon MDP will also be amended to
establish the Villeneuve ASP as the document to guide and direct development of the hamlet.
Additional amendments to mapping in the MDP will clearly identify the planning area for
Villeneuve as the hamlet boundary. These requirements will be met by an amendment to the
Sturgeon MDP that will be considered for approval by County Council in a process parallel to
that for the Villeneuve ASP.
At the time of writing this ASP, the Sturgeon County MDP was undergoing a review to bring the
policies of the MDP into line and consistent with the Capital Regional Board Land Use Plan, to
complete amendments made necessary as a result of ongoing interpretation and to address
issues identified during the review process. The projected completion date for this process is
fall of 2011.
3.4 Land Use Bylaw
The Sturgeon County Land Use Bylaw (LUB) is intended to “regulate and control the use and
development of land and buildings within Sturgeon County to achieve orderly and economic
development of land”.
Villeneuve, including the existing single family residential and the West Country Hearth site is
designated Hamlet Residential land use in the Sturgeon County LUB. It is completely surrounded by
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agricultural lands. There are two other land use designations found within the Planning Area for the
ASP: Airport land use covers the site of the Villeneuve Airport and rural industrial land use covers the
lands in the NE quarter of 18-54-27-W4 lying north of the CN line and immediately west of Hwy 44.
The proposed Villeneuve ASP development concept for future development of the Planning Area lands is
a precursor to the land use designations that will be applied in the LUB for the hamlet. New land use
categories will be recommended to County Council to better guide the development of hamlet land uses
that will eventually implement the concept. The amendments currently contemplated would include
new zones for hamlet residential, industrial and commercial land uses. Mapping within the LUB will also
be amended to reflect the larger planning area and hamlet boundary
3.5 Approved ASPs – Calahoo-Villeneuve Sand & Gravel Extraction ASP
The Calahoo-Villeneuve Sand and Gravel Extraction ASP was adopted in October 2001. The plan states
that the intent of the Calahoo-Villeneuve ASP is to “minimize and control the effects of sand and gravel
extraction by providing development and implementation guidelines and a framework for industry to
develop a valuable resource efficiently and in an environmentally responsible manner.”
The Hamlet of Villeneuve is surrounded by the “Agriculture – No Resource Extraction Area” of the
Calahoo-Villeneuve ASP. The purpose of this policy area is to prevent any future sand and gravel
extraction operations from locating within 800 m of the Hamlet, thus limiting the potential for issues
with existing residents.
The Calahoo-Villeneuve Sand and Gravel ASP also identifies a “Rural Industrial” land use north of the CN
Railway in Section 18. This area is approximately 500 m from the nearest edge of the existing Hamlet.
Areas designated as “Agriculture” provide for the continuation of agriculture production. Sand and
gravel extraction operations in this Policy Area will require re-districting to a new “Gravel Extraction”
Land Use District under the Land Use Bylaw. Land that is no longer used for sand and gravel extraction
can be reclaimed for future development as viable hamlet expansion land, rather than being reclaimed
to their natural state.
The plan does not permit any sand and gravel extraction within 800 m of a multi-lot subdivision, hamlet
or urban centre and within 400 m of an individual residence unless provisions are made with the
individual resident. Expansion to the west of the Hamlet can occur in areas designated as Agriculture.
However, any sand and gravel extraction in this area could limit Hamlet expansion to the west.
The expansion of the Hamlet Planning Area and hamlet boundary to lands east of Hwy 44 could have a
negative impact on lands in the E half of Section 17 currently designated for Resource Extraction. An
amendment is contemplated to the Sand and Gravel Extraction ASP to change the 800m setback from
the multi-lot subdivision, hamlet or urban centre to any residential component within a multi-lot
subdivision, hamlet or urban centre. This will permit non-residential activities to occur within the 800m
setback and permit extraction to occur on Section 17 as long as the easternmost 800 m of hamlet lands
are not designated for residential land uses.
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3.6 Approved Outline Plans – West Villeneuve Outline Plan
The West Villeneuve Outline Plan was approved by Council Motion 101/05 and as such does not have
the statutory sanction of an ASP. The Plan outlines a concept for the development of a part of the SE ¼
18-54-26-4, located west of the Hamlet and north of Highway 633. The Plan states that the southeast
parcel is intended for residential use but could potentially include commercial and/or industrial uses.
The plan outlines a specific use for the 10-acre parcel accommodating the West Country Hearth senior’s
complex in the southeast corner of the quarter section.
The concepts approved by Council motion in the West Villeneuve Outline Plan will be superseded by the
development concept identified in the Villeneuve ASP and adopted as a statutory plan approved under
the MGA. Approval of this Plan does not preclude infill or development of the undeveloped portions of
the 10 acre site at a later date. Any applications for additional development would be subject to
meeting the vision and objectives of the development concept approved in the Villeneuve ASP.
3.7 Villeneuve Airport Master Plan
The Villeneuve Airport Master Plan is a corporate plan prepared for the Edmonton Airports. The
purpose of the Master Plan is to “provide greater definition of the facilities, infrastructure, and services
as well as the timing and implementation plan for the development of Villeneuve Airport”. The
Villeneuve Airport Master Plan provides recommendations for the development of the airport. Impacts
from new development at the airport on the Villeneuve area include increased business and
employment opportunities, increased air traffic, increased road traffic and increased property taxes paid
to the County. Figure 5 illustrates the recommended land use plan for Villeneuve Airport.
It is expected the traffic at the airport will grow due to the regional growth of industry, transportation
and the overall economy. The airport location is at the confluence of air, rail and highway
transportation systems and should benefit from proximity to these other modes of transport. The size
of the aircraft using the airport is not expected to materially increase during the life of the Plan.
The Villeneuve Airport has large areas to accommodate new development but is restricted by limited
water and sewer system capacities. Presently, water is supplied to the airport by means of a 450,000
litre water reservoir, pump house and piped distribution system complete with fire hydrants. Treated
water is trucked to the reservoir, as there is no on-site well or other water supply to the airport. It is
recommended that in order for development to occur at the airport that it tie into Regional sanitary
sewer and water supply systems.
The Master Plan identifies an Airport Business Park located on the southeast corner of the airport lands.
The Airport Business Park would accommodate a variety of commercial, office, retail and aviation
related light and medium industrial uses. The Business Park will also require water and sewer services
to support development.
While the Master Plan does not specifically identify future airpark residential uses,
Edmonton Airports considers this a viable on-airport land use that has been successfully developed
elsewhere. A residential airpark provides lots to build a home and an aircraft hangar (either attached or
detached) that has direct access onto a taxiway for the aircraft. This lifestyle is becoming popular in
Alberta as demonstrated at the Okotoks Air Ranch, Springbank Airport and Twin Island Lake Airport.
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Residential airpark development on large lots may proceed with individual well and septic systems;
however, if smaller lots are proposed, they must be tied to municipal piped water and sewer systems.
Traditional airport/hangar uses are generally low water users. At such time as piped water and sewer is
available, Edmonton Airports can consider providing a broader range of commercial services including
hotel accommodations for airport users.
3.8 Villeneuve Airport Federal Zoning Regulations
Under the Federal Aeronautics Act, there are zoning restrictions that apply to all lands including public
road allowances adjacent to or in the vicinity of the Villeneuve Airport. The outer limits of the lands to
which Federal Zoning Restrictions apply extend about 3.2 km (2 miles) from the airport property. In
general terms, no one may construct a building, structure or object, the highest point of which will
exceed the height of the approach to the runways at Villeneuve Airport or the operating area above the
airport and adjacent lands. This height is approximately 80 feet at the east property line of the airport
and increases as one moves east. The approaches and operating airspace exceed all proposed land use
height restrictions contemplated in the Sturgeon County LUB for the Villeneuve area.
The regulations also impose restrictions on vegetation, the creation of wildlife (wild bird) habitats and
placing of material (food) that would attract birds to the area. This limits stormwater management and
solid waste disposal facility design and placement, but not other developments. If there are issues
regarding development and airport operations, this plan provides for a cooperative approach during
application review so that Edmonton Airports can comment and assist in resolving development related
concerns.
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4.0 Public Consultation
The preparation of the Villeneuve ASP has included input from a wide variety of stakeholders, all of
whom are affected by development and expansion of the hamlet and airport in some way. Stakeholders
include hamlet residents and businesses, Edmonton Airports, CN, Alberta Transportation, Sturgeon
County Council and staff, developers, landowners, sand and gravel operators, Airport tenants and
business operators, area farmers and local businesses.
All the inputs received during the 2005 – 08 process were available for review and confirmation in the
2010 process. The vision statement prepared for the development concept, the objectives of the Plan
and the issues all reflect considerable input from a variety of public and committee meetings, open
houses, public hearings and individual meetings with stakeholders.
When the 2005 – 08 process was concluded, the County did conduct research on Utility Services issues
and continued discussions with developers who remained interested in new development at Villeneuve.
During this time, regional planning issues were also being addressed by the Capital Regional Board and
the framework within which centres like Villeneuve could be expanded was worked out.
4.1 Earlier Consultations
In the 2005 -08 planning process Sturgeon County appointed an Advisory Committee to provide input
and direction at all stages of the planning process, review the work of the consultant, participate in
community consultation processes, assist in the development of policy and provide comments and
feedback on the Plan. The Steering Committee included nine individuals: one representative from
Edmonton Airports, two representatives from Sturgeon County Economic Development, one Sturgeon
County Councillor, two Villeneuve Airport Tenants, two Hamlet residents and one Plan Area resident.
The Hamlet residents were selected from volunteers who responded to a Sturgeon County invitation to
participate on the Steering Committee.
A Community Workshop was held on January 30, 2006 at the Villeneuve Hall. The purpose of the
community workshop was to develop a Community Vision and to gather the feedback of the residents
regarding the future development of Villeneuve. Over 80 people attended the Community Workshop.
The workshop began with an overview of the planning process, purpose of an ASP and information
regarding the Plan Area. After the presentation, participants were invited to identify their vision of the
Hamlet and to identify any issues. Consensus was reached on several issues regarding the future
development of the Hamlet including the airport.
Residents felt that future development will lead to an increase in traffic that would exacerbate the
problems with the highway intersection.
The second Open House was held the evening of June 28, 2006 at the Villeneuve Hall. County staff and
the planning consultants were in attendance to answer questions raised by the public. The Open House
was advertised as a public meeting
Over 80 people attended and exit surveys were completed and returned. The Open House was
formatted to include a brief presentation followed by a question and answer period, with the remainder
of the evening available so attendees could review the display boards and ask questions to staff and the
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consultants. However, the question and answer period lasted the entire scheduled meeting and there
was little time for attendees to review the display boards.
Residents expressed concern for the vision of the ASP. The majority of the people who live within the
hamlet are undecided or do not support the vision and future land use scenario. The vision assumes
Hamlet growth, which is not supported by all residents.
Residents generally supported the integration of conservation design into residential development.
A third Open House was held on September 14, 2006 at the Villeneuve Hall. It was held in response to
the concerns residents had over duplex housing in the Plan Area. Sturgeon County staff and planning
consultants were available to answer questions raised by the public. It was clear that a majority of the
people at the open house did not support duplex housing.
Forty-one people attended the open house and exit surveys were completed by the attendees.
Generally, most people at the open house were more supportive of the plan after some changes were
made. The exit surveys showed there are mixed feelings towards duplex style homes and do not want
this style of homes in the Plan Area. The most frequently expressed concerns raised by attendees
referenced the special hamlet commercial district to be located immediately west of the West Country
Hearth seniors complex. Some residents felt it was too close and would lead to increased traffic in the
area. It was suggested a more appropriate area would be near the Villeneuve Airport. Some residents
agreed that it is a good idea to have a commercial district close to West Country Hearth to provide
services to the seniors and their visitors. There were also several comments regarding the minimum size
of lots in the Villeneuve area. The draft Plan supported one hectare lots, however many residents felt
one hectare lots are too large and should be smaller in the Plan Area. Those who attended were very
supportive of conservation design principles to be reflected in residential proposals.
The draft Villeneuve ASP was reviewed by County Planning Staff in early 2007 and felt to require
additional input to address development related issues near the existing hamlet. Additional workshops
were held with the Committee in June, July and early October of 2007. The meetings focussed on
defining the Hamlet issues and further development of the vision for the Hamlet.
4.2 2010 Consultations
A public meeting was held on April 15, 2010 with many stakeholders to discuss what an ASP is and why
it was back, review the vision, objectives and issues associated with the earlier ASP preparation process
and review the proposed ASP preparation process including proposed meetings. A summary of the
notes taken at that meeting are included as Appendix A to this Plan.
A second public meeting was held on May 13, 2010 to meet with stakeholders and review the April 15
vision, objectives and issues, discuss land use allocations with stakeholders in small groups, present
findings from the groups and discuss guidelines for managing new growth in small groups. A summary
of the notes taken at that meeting are included as Appendix B to this Plan.
A final public meeting was held on June 24, 2010 where the first draft plan was presented and discussed
with members of the community. All those attending were asked for written comments and there were
follow-up workshops or meetings with all those who prepared comments into October of 2010.
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5.0 Development Concept
The Development Concept for Villeneuve Hamlet includes 6 land uses within approximately 18 quarter
sections, 9 quarter sections of which are dedicated to the Villeneuve Airport.
5.1 The Vision for the Hamlet
The vision for the future Hamlet has been prepared based on key characteristics of the community and
its current layout that appeal to existing residents and that represent why some were initially attracted
to Villeneuve and/or why they stayed.
Villeneuve has a rural residential atmosphere with good access to urban facilities and services in
neighbouring urban settings. There is lots of space in private yards, in public areas and across back
fences. Lot sizes vary and combined with irregular setbacks and houses set to one side of large building
envelopes, they create an impression of a more relaxed residential layout – quite distinctive when
compared to more precise and ordered urban development.
Existing residents do not want to see high density development within the hamlet. Very limited duplex
and semi-detached residential housing components that are not duplicated on adjacent sites and are
fully integrated into primarily single family residential areas may be permitted. A variety of unit sizes is
also desirable. Limited density is an option for new development only when it works for the community.
Neighbours and neighbourliness is a major factor in the community vision. The quality of the built form
in the community is important, but so too is the quality of each neighbour. Strong volunteerism creates
a strong community and good neighbours chat and help out.
5.2 Key Elements of the Development Concept
The vision for Villeneuve presents a clear image that can be replicated in new development. It is
possible to capture the physical elements that support the vision in a specific land use planning design
concept referred to as “Clustered Design”. This design approach uses residential development
guidelines that could be implemented through the amending ASPs and the County LUB. For example,
the Plan can establish requirements for varying setbacks from a road, varying lot sizes and for varying
side yards. The Plan can also adopt rural profile residential roadways with open ditches as the hamlet
development standard to provide more visible open space in the community. The more cultural
elements expressed within the vision such as neighbourliness and volunteerism will require community
activities and neighbour contact to ensure they are communicated to and embraced by new residents.
The principal challenge in introducing more community or public space to complete the community
vision is cost. A developer faces a significant cost increase to designate extra lands as undeveloped
space because it adds to the price point for every property. If the developer is expected to provide
additional lands for open space, it is reasonable to expect there would be some offset to do so that at
least covers his costs to provide that open space. There is no replacement for ensuring an economic
opportunity exists for a developer through the provision of economic densities and competitive costs.
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The development industry within the Edmonton region relies on private investment for new
development and municipal infrastructure and without it, no growth will occur.
The Plan can adopt open space and municipal reserve requirements that create a residential
environment with lots of visible community space by requiring neighbourhood designs that include
linear parks through the community. It can also reduce the costs of infrastructure by reducing or
limiting expensive elements like curbs, sidewalks and underground storm sewers and promoting rural
road profiles with linear parks and trails. The development concept also assumes there will be some
dedication of lands for storm drainage facilities (dryponds) that would become public utility lots and
contribute to open space whether they are developed for multi purposes such as playing fields or not.
Density is a very high profile issue with the community. From their perspective, even row housing with
4 units is high density. The unexpressed concerns of residents over density are the links with social
issues that draw community energy. West Country Hearth has worked very well and contributed greatly
to the fabric of the community. It has introduced housing options for seniors that permit them to stay in
Villeneuve and provide new opportunities for community interaction. And, it is noted the West Country
Hearth complex site could provide smaller units of independent housing for seniors who are not ready
for higher levels of care. What is needed is a means of providing assurances that any multiple unit
residential will be of good quality, well integrated into the community and not become an isolated
neighbourhood or part of a neighbourhood on its own.
Regional Plan objectives and requirements for a variety of residential unit types and opportunities have
been an important factor influencing the need for more variety in the types of residential units
accommodated in the Hamlet. Existing hamlet residents are quite against higher density and the
perceived social problems, but the municipality is required to accommodate a variety of unit types in
support of the regional plan. As a result of this conflicting guidance, the direction proposed in the
Villeneuve ASP Development Concept is to provide good quality, predominantly single family residential
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units with limited ground oriented duplex housing. Row housing may be permitted to be put onto small
sites such as West Country Hearth where the community believes this type of residential can work for
the community. Otherwise, a limited number of duplex units will be permitted only if integrated into
the single family residential within new residential areas.
Stakeholders in each meeting held in 2010 and in the earlier consultations clearly indicated the
predominant types of residential units should be single family dwellings and this is the intent of the Plan.
5.2.1 Land Use Plan - Figure 7 is the Development Concept Map prepared for Villeneuve. There are 6
land use categories identified in the map. Commercial land use forms the smallest developable area
with a central location identified on the airport lands and a small “focus” area identified north and south
of Highway 633 at the intersection of the major residential collector road. Residential land uses are
indicated on lands west of the existing hamlet and totalling about 3 quarter sections. Industrial land
uses are located on two and just less than a half quarter sections north of the hamlet on either side of
Highway 44 and bisected by the CN Rail line. There is also industrial land for development in the
southeast corner of the Villeneuve Airport site. There is an open space buffer running from the West
County Hearth site behind the existing lots on the west side of Villeneuve Road North to the lane access
to Villeneuve Road North. Airport land uses make up the balance of the Airport site and the sixth land
use category is Hamlet Reserve, a land use that creates land that may be used for future development
once the growth of the community is well underway.
5.2.2 Residential Density - Future residential expansion within the hamlet should be directed to the
west of the current hamlet. Several land uses including open space/municipal reserves/parks, local
roadway networks and public utility lands will be permitted within the residential lands designated in
the Development Concept Map, subject to approval of an ASP Amendment. The style of new residential
development in Villeneuve will be clustered residential design modified to achieve urban densities using
variably sized residential lots on cul de sac roads with fewer than 25 lots and linear parks. Figure 6
shows an example of clustered residential development compared with traditional residential
development. At a planned density of 600 units per quarter section (9.25 gross units per ha), the total
number of units expected to be accommodated within the residential growth areas noted in the future
land use map is about 1800. At a household size of 3 persons per unit this would translate into an
incremental 5400 residents for Villeneuve.
Residential development will be accommodated on a range of lot sizes that will be guided by the
provisions of the Land Use Bylaw and architectural guidelines will be applied in each neighbourhood by
the developer as a condition of sale. Architectural guidelines will be used to ensure variety in residential
elevations, exterior colours and the minimal provision of landscaping. Residential housing unit types,
required yards and other development regulations will be managed through the provisions of the
Sturgeon Land Use Bylaw.
Every residential lot shall be connected to municipal services and development standards for servicing
shall conform to Sturgeon County General Municipal Servicing Standards. In an effort to permit a
character of development that meets the vision of the community for new residential development, the
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County is prepared to consider innovative servicing standards for Villeneuve. In general terms, roadway
standards in Villeneuve may be a combination of rural and urban profile roads, storm services may
include a combination of pipe services, ditches and culverts and dryponds, urban style street-side
sidewalks may be replaced by multipurpose trails/ walkways and curb and gutter requirements may vary
with the road profiles, all to the satisfaction of the County Engineer. The developer will also be
permitted to dedicate additional reserves to the County or put lands into a conservation trust to be
managed by a local community association with suitable objectives and the capability to properly
manage the resource.
Additional dedications to the County or a suitable Conservation Trust allows the developer to improve
the economics of development by:
o
Increasing the amount of open space within the neighbourhood, creating more
attractive developments for marketing purposes and meeting the community vision;
o Reducing the extent of servicing infrastructure which lowers costs;
o Improving the speed at which lots and homes can be sold because of the advantages
associated with more open space than competing developments; and
o Increased individual home and lot values because of the high amenity value of the open
space.
In addition to the above points, the developer is able to develop 600 units per quarter section at less
expensive rural/urban standards that competing urban style developments will have difficulty matching,
allowing the development to proceed at a more competitive price point.
5.2.3 Commercial - Any commercial development that locates within the hamlet is expected to address
one or more of 3 markets in the area: the resident and rural population, the airport and airport workers
or highway traffic. No one market is expected to provide sufficient strength to support new commercial
development for some time, particularly while the St Albert commercial market is only 7.5 miles away.
Except for low order goods such as bread and milk, the St Albert commercial is too close and prices are
significantly more competitive for typical purchases to support new retail uses in Villeneuve.
It is for these reasons that the commercial land uses in Villeneuve are not expected to develop very
quickly. What is indicated on the Development Concept Map are two commercial focus areas where
limited commercial development is expected to locate in the future. These areas are located adjacent
to the proposed major collector road, where it intersects Highway 633 between the Hamlet and the
Airport and at the entrance to the Airport off Highway 633. By locating future commercial development
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in these parts of the Hamlet, traffic will be segregated between the Hamlet and the Airport, truck traffic
from the industrial and gravel extraction areas north of the Hamlet can be diverted away from the
hamlet and the three markets can be effectively served. The phasing of residential development will
delay creation of commercial sites until market opportunities have been developed.
The commercial area identified on the Development Concept Map is also difficult to size appropriately
to address future demand when the development timeline for the hamlet is unknown, as are the likely
commercial businesses that might populate the zone.
Commercial development guidelines for development on the west side of the hamlet reserve land use
area between the Airport and the Hamlet will include the following requirements:

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


Commercial development will have controlled direct access off Hwy 633.
Height restrictions limiting development to 2.5 storeys or 10m will apply to any
development not located on airport lands.
The architectural theme for commercial development will be a “Mainstreet Alberta”
approach with angled, nose-in parking set back from travel lanes and on-site parking at
the side or in the rear of any new development (see Figure 8).
Hotels and motels serving local markets will locate on the Airport commercial industrial
lands to the west of the hamlet reserve designated lands on the west side of the hamlet.
Commercial development will include landscaping treatment that will include trees and
shrubs in parking lots and trees in boulevards along adjacent roads.
5.2.4 Industrial - Industrial development has been planned for in two locations within the expanded
Hamlet. The airport industrial site is located in the South East corner of the airport lands and is
expected to attract airport related commercial and industrial land uses that would complement the
airport land use.
The industrial lands located on the north edge of the hamlet are bisected by Highway 44 and the CN
line. The strength of this location for industrial development is related to its proximity to the sand and
gravel extraction activities to the immediate north, the confluence of rail, highway and air facilities and
the potential to accommodate a new outer ring road. This area can expand, if necessary, to the north or
east once gravel extraction activities have been completed and the lands reclaimed.
Industrial land uses for the north end of the hamlet will be zoned for light and medium industrial land
uses. All industrial activities will occur within a built structure and no impacts from noise, dust, glare,
smells, light or similarly objectionable impacts will be permitted. Rural industrial land uses will not be
permitted as they do allow limited heavy industrial activities under permitted or discretionary land uses.
Outdoor storage will be permitted under Medium Industrial, but it will require screening from adjacent
roads. The Sturgeon Land Use Bylaw will have new zoning categories added by amendment to
accommodate these needs.
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Access to these industrial areas at the time of writing is via Highways 44 and 633 and a CN spur into
Ward Chemicals. CN would need to develop new rail facilities to permit additional rail access and the
airport would have to develop its facilities further to provide air access.
Industrial development will only be permitted next to residential development where adequate
buffering is provided, to the satisfaction of the Development Officer, on the industrial lands immediately
adjacent to any designated residential lands. This buffering may be achieved through a combination of
berms, solid fences, landscaping, and open space
5.2.5 Open Space/Parks - Open Space and park land is expected to be integrated into residential areas
and identified in the follow-up Outline Plans for the Hamlet. The concept to be developed within the
residential areas is a linear park system with multi-purpose trails that provide an effective network
linking destination points within each land use area in the Hamlet. A linear park system fits well with a
clustered residential development concept and permits not only variation in lot widths, but also lot
depths, enhancing the ability of the developer to provide a wide range of lot sizes within a clustered
development concept. Figure 9 presents one view of Open Space design for Villeneuve.
Only one open space area has been specified in the Villeneuve ASP Land Use Plan and it is located west
of the existing hamlet development, north of West Country Hearth and Hwy 633. This open space is
intended to buffer the existing development from new development. The depth of the required buffer,
based on stakeholder input, is such that it is recommended a school yard with playing fields be located
there to achieve the appropriate depth. There is about 9 to 10 acres for a school site in that location.
The Development Concept for the hamlet does not anticipate significant amounts of land be dedicated
for municipal reserve within the industrial land use areas. It is intended that land dedications in the
industrial areas be limited and that most if not all reserves be paid as cash in lieu. This provides the
municipality with sufficient funds for park development and possible additional open space land
purchases where appropriate in residential areas.
5.2.6 Transportation - The current roadway network consists of Highways 44 and 633 and some local
roads at the existing Hamlet and Villeneuve Airport. Alberta Transportation (AT) controls the future
development of both highways and the newly identified Outer Ring Road that will be designed to
improve regional traffic movements. Much of this work is currently being reviewed and considered by
AT with key decisions on route planning expected within the next few years.
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For transit, research undertaken by the Transit Committee of the Capital Regional Board suggests that
the Hamlet will remain too small a market for anything other than good commuter service to and from
an intermodal hub in St Albert. The research makes accommodation for a “lifeline service” or a taxi scrip
program by either a commercial carrier or a handy bus service connected to an operation like the West
Country Hearth facility. Transit needs might even be fulfilled by a municipal program with volunteer
drivers and a not-for-profit organization structure which has seen some success in situations similar to
Villeneuve. As growth in regional transit occurs, other options may present themselves to Villeneuve.
On and off-street parking can have a great impact on the liveability of a neighbourhood in clustered
developments with a high percentage of cul-de-sacs. There are several potential solutions including
designated on street car park areas on the shoulder of the street, designated stalls within the centre of a
cul-de-sac bulb or angled parking along the one or both sides of the throat of the cul-de-sac. Better
organized on-street parking is essential to successful cul-de-sac living and specific attention by the
developer will create sustainable rewards for the life of the neighbourhood.
5.2.7 Fire Suppression Service Options – At the time of writing this Plan, Sturgeon County provided fire
suppression services to County residents and businesses through a professional, part-time, paid-on-call
(volunteer) model with plans being considered to introduce a professional, full-time service in Sturgeon.
Service to Villeneuve is currently provided by a part-time, paid-on-call fire service located in Calahoo
supported by other fire services that may come from Morinville, Namao or other locations as required.
Accommodating urban development at Villeneuve creates demand for a higher level of service in
Sturgeon for fire suppression. Developing residential homes in close proximity (as close as 10 feet apart)
creates the potential for hot urban fires which require a shorter response time for effective suppression.
These fires can rapidly get out of hand, particularly in difficult climactic conditions and lead to significant
loss of assets and possibly life if they cannot be dealt with quickly. In order to reduce the risk of High
Intensity Residential Fires there are new mandatory requirements under the Alberta Building Code that
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deal with construction methods to enhance fire safety. The service options generally considered to be
available are:
1. Professional fire suppression services in the community supported by additional part-time fire
services, requiring significant capital investment in stations, equipment and significant operating
budgets for labour and training. This option requires multiple million dollar expenditures from
the general tax levy and is required in the early stages of development of the expanded hamlet.
2. Fire suppression services as currently offered from Calahoo and supporting services coupled
with development regulations requiring sprinklers in all new buildings, including residential
structures. The costs for this approach are paid for by the new owners of the built structures. It
has been estimated that costs for a 2000 sq ft residence would be in the order of $2,000 to
$4,000. This does have an impact on affordability of housing product, but is offset by ongoing
reductions in the cost of homeowner insurance policies.
Parkland County has specific requirements for sprinklers in new residential structures in new
development located beyond a 10 minute response time from their station network. There are entire
subdivisions in Parkland now that are sprinklered and the policy seems to be working well. Private
sprinkler systems do need to be maintained with regular inspections, but the systems themselves are
low maintenance in design.
Both options require the same level of municipal water service infrastructure within the expanded
community. Water mains to any new development will be sized to provide for fire suppression and fire
hydrants, while reservoirs and pumps providing appropriate levels of service will be integrated into the
plans for service expansion. Where the costs of new fire suppression infrastructure and services can be
allocated to new development, in whole or in part, they will be paid for by new development.
The policy options for Sturgeon County have been discussed with the Fire Chief and it is recommended
that any new buildings within the Hamlet be sprinklered. This relieves Council of significant upfront
capital costs for new facilities and equipment and ongoing operations costs for full-time professional
staff, training and facility operating costs.
5.3 The Process of Amending the Primary ASP
The County considers it the role of the administration to prepare bylaws, but recognizes that developers
may wish to expedite the process through the external preparation of ASP and MDP amendments. As a
result, Sturgeon County permits the preparation of Statutory Plan amendments by developers.
Where multiple ownership of land occurs within the planning area of a proposed ASP, the majority of
landowners should be in agreement on the basic development concept in the Plan. Prior to submission
of an amending ASP, the author of the Plan is required to have conducted at least one public
presentation of the proposed plan, obtained public input from area landowners and residents affected
by the Plan and accommodated, to the best of their ability, the intentions of landowners and residents.
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This information is required to be included in the content of the plan as a record of community input
and commitment to the vision for the ASP. The developer is responsible for retaining professional
assistance in preparing the ASP and Sturgeon County encourages developers to retain planners,
engineers and other suitably qualified professionals for this purpose.
The process of preparing an amending ASP begins with discussions with the County administration. The
Manager of Planning and Development should be consulted on the planning area, development context,
development concept and plan content. It is the developer’s responsibility to prepare an Outline Plan
for County Council following that discussion. The specific information requirements to be included in an
Outline Plan are included in this Primary ASP, the most recent Terms of Reference for Preparation of an
Area Structure Plan approved by County Council and the related individual land use sub sections. On
receipt of a submission from the Developer, the Manager of Planning and Development Services will
inform the division Councillor of the proposal and a presentation to City Council will be scheduled to
present the plan. After the presentation, County Council, with the assistance of staff, will review the
submission to determine if the proposal has merit and whether the proponent should be allowed to
prepare (essentially convert the Outline Plan to) an ASP. Any investment in an ASP on the part of the
Developer is made entirely at the Developer’s risk and County Council remains under no obligation to
approve or amend and approve any Outline or Statutory plans.
Upon submission of the proposed amending ASP, the County will review the application for
completeness. Once the application is judged complete by the Manager, Planning and Development
Services, the documentation will be circulated for review by the County, a process coordinated by
Planning and Development Services. Comments arising from this review will be consolidated by
Planning and Development Services and given to the applicant for consideration/ inclusion in the Plan.
An ASP that has completed circulation will be the subject of further meetings between the developer
and County staff. Issues raised through the circulation process must be addressed in a revised Plan.
While a Plan that is not supported by the County administration may proceed to County Council at the
applicant’s request, it is advisable to address all issues and concerns raised by the administration and
circulated agencies if the application is to proceed without delay. Incomplete Plans risk being refused or
face significant delays.
All Area Structure Plan amendments shall include a summary of the planning context for:
a) Capital Region Board Growing Forward, Land Use Plan and amendments/updates.
b) Sturgeon County Municipal Development Plan Bylaw, as amended
c) Adjacent or previous Area Structure Plan Bylaws: and,
d) Sturgeon County Land Use Bylaw, as amended
All amendments to the above Bylaws except for the CRB Plans and amendments are required with the
ASP submission to facilitate a more comprehensive view of the changes required to approve the
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proposed plan. Plans given second reading by Council must be approved by the Capital Regional Board
prior to Council giving third reading to the bylaw.
6.0 Development Policies
These policies shall be met by all applicants in the preparation of either an Outline Plan or an ASP
amendment. The decision as to whether a policy applies to a particular Plan shall be made by the
Manager, Planning and Development Services in consultation with the relevant manager of a specific
discipline, should it be outside of the jurisdiction of Planning and Development Services.
6.0.1 All Outline Plan and ASP Amendment applications will conform to the most current Council
approved Terms of Reference for Area Structure Plans.
6.0.2 All subdivision within the Hamlet Planning Area must be based on the Development Concept
presented in this Primary ASP, the policies identified in the respective sections of this ASP and reflect the
phasing and implementation strategy in this Plan.
6.0.3 All applications to develop lands within the Planning Area shall include, at the discretion of the
Manager, Planning and Development Services:
i) a municipal and environmental reserve dedication strategy that may or may not
include the dedication of additional reserves and a corresponding maintenance of
density for proposed residential development lands.
ii) an emergency services plan that will be coordinated with the County.
iii) architectural controls and/or guidelines for multi-lot development.
iv) a strategy to ensure compatibility between future, proposed and existing
development for linear features (eg. Roads, multi-purpose trails, recreation facilities,
school sites, reserve lands and any other similar developments) designed to integrate all
development in the Hamlet.
v) a landscaping strategy for the proposed development site.
vi) documentation of a community consultation program.
vii) a strategy for resource extraction on adjacent and subject lands as might be
appropriate given the designation of the lands under the Calahoo-Villeneuve Sand &
Gravel Extraction ASP.
The Manager may choose to require one or more of the above noted documents be provided as a
condition of subdivision approval or for inclusion in a development agreement if that is deemed
appropriate.
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6.0.4 Future development within the Planning Area should incorporate sustainable and conservation
oriented development practices for sites (e.g. LEED ND), buildings (e.g. LEED), and individual units (e.g.
Active or passive solar, low flow showers, energy conserving appliances).
6.0.5 All development within the Planning Area will incorporate urban style street profiles with
sidewalks, curbs underground services and paved roads or paved rural profile roads with surface
drainage facilities and underground services or a combination of the two standards.
6.0.6 The Villeneuve Hamlet boundary is expanded to include all of the lands shown within the Planning
Area for this ASP.
6.0.7 Development within the Hamlet Planning Area will only be permitted with piped water and
wastewater services, to be developed and funded by the developer as part of each new development.
6.0.8 While many of the lands adjacent to the existing community have been farmed for generations,
altering many of the natural features, where new development is proposed in the future, the design of
new areas should reflect a sustainable and environmentally sound approach to new development that
supports the following principles:
i) flexibility of site design and lot size. New residential areas will include lots with
varying lot depth, frontage and area. This will achieve the resident’s stated objectives
and assist the developer in achieving market requirements;
ii) thoughtful protection and management of natural areas. Naturalized open space
under airport approaches should be managed in consultation with the airport authority
to minimize the inappropriate development of new habitat for birds. Likewise, surface
storm drainage offers significant cost savings for the community and developers, but
proximity to the airport prohibits water bodies that could become habitat for birds;
iii) reduction of impervious surface areas. Permitting rural standard road profiles with
urban standard reduces the amount of impervious surface areas in the community.
Trails to integrate the destination points within the expanded hamlet must
accommodate year round access by cart (seniors) and consideration should be given to
permeable alternatives for trail surfaces where County standards permit; and
iv) sustainable storm water management. Dry ponds will be integrated into new
development on PUL sites and developers will be encouraged to also use these facilities
for multiple purposes by including recreational facilities where practical and naturalized
areas where appropriate. Multi-purpose facilities are more cost effective for
developers and new residents, are more sustainable for the community and help
achieve the stated objectives of the Plan.
A clustered development approach to new residential development offers significant advantages to the
community (rural residential lifestyle, more sustainable, more open space), to developers (efficiency of
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servicing, achieving better price points with a wider range of lot sizes, higher amenity value per lot,
distinctively different market option), to the environment (more open space, ease to integrate natural
physical features, permitting conservation of higher quality environmental features), and to the County
(residential service provision and maintenance, fire response and containment).
6.0.9 All new buildings constructed within the hamlet shall be sprinklered for fire suppression.
6.1 Hamlet Residential
The following policies will apply to any residential development proposed for the Hamlet Planning Area
in addition to the general policies identified in Section 6.0:
6.1.1 Minimum residential lot size for single family lots within the Hamlet shall be 46 ft by 125 ft or 5750
square feet.
6.1.2 Lot sizes and residential unit types shall vary throughout the Planning Area and individual
neighbourhoods so that a mix of lots and unit types is fully integrated. Multiple unit residential
buildings shall not be duplicated within 7 lots in a cul de sac or block face. Multi Unit residential
buildings should be situated facing or flanking a collector status roadway.
6.1.3 Flankage lots should have a minimum 50 foot width. A flankage lot is a lot located at the
intersection of two public roadways, other than a lane, where the front yard runs parallel to one
roadway and a side yard runs parallel to the other roadway.
6.1.4 The maximum number of lots permitted within a quarter section within the hamlet shall be 600. If
a parcel under application is less than a quarter section, the number of permitted lots shall be pro-rated
based on the gross area of the development site as identified in the Outline Plan prior to any dedications
except provincial or County Road ROW registered on title at the time of application.
6.1.5 All future Hamlet Residential south of Highway 633 and fronting on Villeneuve Road South(directly
facing existing Hamlet Residential) will be 0.4 hectare (1.0 acre) lots. Future property lines will align
with existing property lines east of Villeneuve Road South. Frontages will be similar width but depth of
lots may be reduced. Alternatively, land immediately west of Villeneuve Road south could be bermed
and landscaped with provision for one overland emergency access or it could accommodate some other
form of transitional buffer such as amenity space or a drypond.
6.1.6 Municipal Reserve space will be strategically distributed throughout new residential areas in linear
parks. Two blocks of reserve are required for school sites, one on either side of Hwy 633. One school
site shall be located immediately west of existing residential lots on the west side of Villeneuve Road
North, north of West Country Hearth. All new development will include pedestrian connections to the
community destination points within the Plan Area. The County may consider negotiations with
developers to increase open space over current legislated limits where warranted.
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6.1.7 Open space buffering is preferred between existing residential and new residential land uses.
Institutional land uses such as schools or public open space such as storm water management facilities
may be acceptable alternatives depending upon the specific location and detailed development plans.
Buffering shall include grassed open space, berms, trees, shrubs and, where appropriate may include
fencing, walkways and bikeways.
6.1.8 Access to new development sites in the areas identified for residential land uses shall be provided
via Hwy 633 and not from roads extended from the original Villeneuve residential area. Access to
Highway 633 will be limited, but will be achieved by intersections and not by service roads. Temporary
gravel access roads may be required to provide alternative access to new developments prior to full
development.
6.1.9 While development will reflect a clustered design approach at the subdivision level, there is a need
for Architectural Guidelines in each subdivision to ensure the quality of development remains at a high
standard and that all homes meet community expectations with respect to variety on elevations, variety
in colour, minimum landscaping treatment for front yards and similar essential elements that contribute
to a quality residential environment and neighbourhood. These guidelines will be prepared by the
developer, approved by the County and enforced by the developer at point of sale.
6.1.10 Residential streets shall have 1.5 on-street parking spaces identified per lot.
6.1.11 Rear lanes with access to attached or detached rear garages will be permitted as an alternative to
front attached garages. Front verandas shall be at least ¾ of the full width of the house. Rear lanes and
suitable drainage facilities will be constructed to the satisfaction of the County Engineer.
6.2 Hamlet Commercial
Existing commercial development in the Hamlet includes one small general store and gas station. This
facility has met community needs for convenience commercial for many years. Long term objectives for
commercial development in Villeneuve are to locate commercial uses on lands with superior access and
visibility where they will provide a level of service that does not draw undesirable highway traffic onto
residential streets.
Some commercial development, including a hair salon and coffee shop, are located within the West
Country Hearth seniors housing facility. While these services are geared to the residents of the facility,
they are open to community members at large.
Because of the close proximity to the existing commercial development in St Albert, which is quite
extensive, commercial development at Villeneuve is expected to remain focussed on low order goods
(convenience retail, limited restaurant and food service). New commercial businesses will only locate in
the hamlet following new development, which would include a number of new businesses in the
industrial and commercial areas and a significant increase in the resident population.
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The County supports sustainable development and sees the opportunity for small boutique style
commercial operations such as convenience retail, used book stores, dry cleaners and general retail.
The goal is to provide the opportunity for commercial services that allow residents to shop in their own
community without the need to drive to St. Albert or Edmonton for all commercial needs. Large scale
commercial development or large chain stores are unlikely given the proximity to existing developments
in the nearby urban communities. The point has been made by several residents in public consultations
that these commercial uses are not considered appropriate for Villeneuve in any event.
The expanded operation of the Villeneuve Airport for private aircraft, the expansion of the Hamlet
residential and the eventual construction of the Outer Ring Road may attract a small hotel. While the
determining factors for the location of such a facility remain in flux at the time of writing, it is
conceivable that this development could be an anchor commercial use on the airport lands. This is the
only practical reason for a possible height of development over 2.5 storeys in the hamlet apart from
specialized facilities such as hangars at the Airport. A 4 storey development height would likely be
appropriate for a hotel, but would not be viable for several years until the market is established.
The Plan identifies two commercial “focus” locations in the Development Concept, Figure 7, situated at
the intersection of Highway 633 and the western residential major collector and at the entrance to the
airport off Highway 633. The extent of the commercial focus is not specified, nor is the timing of any
commercial development. The intent is that it be suitable for limited commercial development within
the hamlet boundary on the residential side of a future highway interchange and more extensive
commercial development on the north side of Highway 633 on the airport lands.
Hamlet Commercial will comply with the policies identified in Section 6.0 in addition to the following:
6.2.1 All proposed Hamlet Commercial should be compatible in form and scale to existing residential
and non-residential uses and should consider the context, mass, siting and building heights of existing
and proposed development. Buffering of any commercial use next to a residential use will occur on the
commercial property and will consist of fencing, landscaping and integration of trails and open space as
necessary at the discretion of the Development Officer.
6.2.2 While development must meet the requirements of the Sturgeon County Land Use Bylaw, the
community would like to see Hamlet commercial development reflect a traditional Alberta Mainstreet
theme that requires conformity with the following design and development criteria:
i) commercial development shall not exceed a maximum height of two and a half
storeys or 10 m in height, except for a hotel or hangers at the airport which may not
exceed 4 storeys or 14m in height;
ii) commercial development shall be designed to mitigate and limit undue off-site
impacts including noise, traffic, lighting, litter, contamination or dust;
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iii) commercial development in the Hamlet shall incorporate architectural
features to implement the Alberta Mainstreet theme in building design and also govern
building lighting and signage including facia, pylon and temporary signs;
iv) commercial development may incorporate stormwater control measures including
roof top storage, parking lot storm water event storage, reduced impermeable surfaces,
grassed channels, green roofs and/or other non-habitat creating stormwater facilities;
v) commercial development shall incorporate landscaping onto the site that reflects the
scale of the proposed development, standards appropriate for the community and
integrating elements with the community open space and multi-purpose trail plan, to
the satisfaction of the Development Officer. Landscaping should also include
consideration of seasonal retail and vending opportunities. Commercial development
in the Hamlet shall accommodate separate vehicular and pedestrian/ bicycle/
motorized cart access through linkages to the open space trail network in the hamlet.
vi) parking shall be incorporated onto each development in the Hamlet core with angled
street parking combined, as required to accommodate the proposed uses with on-site
parking. Increased use of permeable surfaces and landscaping should be incorporated
into on- site parking. Bicycle/ cart parking should also be considered in these plans, and
vii) integration of community facilities defining a central place for the community and
commercial development shall be encouraged and facilitated through joint parking,
landscaping and other common facilities. An open space area for holding outdoor
community events should be considered in any redevelopment options for commercial
land uses.
viii) A transit centre, to be developed in or adjacent to the commercial focus area would
be an asset to the Hamlet and permit/ facilitate commuter transit service from the
Hamlet to other destination points within the Region.
6.2.3 All Hamlet commercial development will be pedestrian oriented with level street access, front
doors, display windows and pedestrian amenities such as benches, planters and bicycle racks.
6.2.4 Signage will be sensitive to the rural agricultural character of the community. Signs placed within
one kilometre of the right-of-way of Highway 44 or Highway 633 will require approval from AT, in
accordance with subdivision regulations. Signage on the Villeneuve Airport will also conform to
Edmonton Airports, Transport Canada and County regulations.
6.2.5 A focus area for future Hamlet Commercial has been identified in this Plan. New commercial
development applications in the Hamlet are not expected to be received for some time until
development of new residential areas are well under way and a resident population is established. Any
application for commercial redevelopment will be considered on the individual merits as well as the
compatibility with the Development Concept and policies stated in this Plan for the hamlet.
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6.3 Hamlet Reserve
Hamlet Reserve lands have been identified on the Development Concept for the Villeneuve ASP to
achieve a number of objectives:




They permit development in the initial years to be focussed on lands adjacent to the
existing hamlet to keep the hamlet compact and development contiguous.
Hamlet Reserve lands east of Hwy 44 permit lands identified for gravel extraction to be
mined within the initial planning horizon for the Hamlet as currently designated in the
Calahoo-Villeneuve Sand & Gravel Extraction Area Structure Plan. Upon extraction of
the gravel resources, the reserve lands can be assessed for the most appropriate type of
future development. If resources are not extracted and the community grows,
designation of Hamlet Reserve for residential land uses on lands east of Hwy 44 could
preclude resource extraction.
Reserve lands permit other processes such as the designation of the routes for the
future realignment of Hwy 44 or the Edmonton Region Outer Ring Road to occur while
expansion of the Hamlet proceeds.
Reserve lands create buffers between potentially conflicting land uses while the exact
nature of the land uses are being determined and appropriate mitigation measures can
be established as necessary.
Policies for land uses to be developed on the Hamlet Reserve lands, in addition to policies identified in
Section 6.0 are as follows:
6.3.1 It is not the intention of the Plan to promote the premature conversion of agricultural land to nonagriculture uses and the continuation of extensive agricultural use is encouraged in the Hamlet Reserve
area as an ongoing use. It is anticipated that the lands remain agricultural until such time as
redesignation of the lands to more appropriate long term use(s) within the hamlet is appropriate.
6.3.2 Interim land uses that include open space, recreational or municipal land uses may also be
considered as temporary land uses during the initial phase of development. Council may consider other
temporary uses on a case by case basis provided the temporary uses are effectively buffered, where
appropriate, from adjacent land uses and the application for temporary use other than agriculture has
been part of a consultative process. Approvals for any temporary use may necessitate an amendment
to the Sturgeon County Municipal Development Plan and/or an amendment to the Land Use Bylaw, to
be determined at the discretion of the Manager, Planning and Development Services.
6.3.3 Interim land uses shall not preclude, terminate or in any way limit the extraction of sand and
gravel resources from adjacent land uses designated for active extraction in the Calahoo-Villeneuve
Sand & Gravel Extraction ASP. This policy shall not interfere with an agreement between adjacent land
owners that would permit sand and gravel extraction to occur in conjunction with the use of Hamlet
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Reserve lands for a temporary or interim (non-residential) land use, subject to County Council approvals
as required.
6.4 Hamlet Industrial
Under the Development Concept for the Villeneuve ASP, industrial development is planned for
Villeneuve Airport and the lands adjacent to the CN line on the northern perimeter of the Hamlet.
These lands have two key features that make them unique in the Edmonton area and suitable for
industrial designation:


They are located at the confluence of air, highway and railway links at the outer edge of
the Edmonton region. The three links include Villeneuve Airport, one of four airports
operated by the Edmonton Airport Authority, Highway 44 and the future Edmonton
Region Outer Ring Road and the CN line with access to Whitecourt and Edmonton.
The Hamlet is located immediately south of sand and gravel extraction areas serving
most of the Edmonton region and have many years of expected life.
These locational advantages support the designation of light and medium industrial lands for future
development at the airport and adjacent to the CN facilities and provincial highway. The designation
will create a sustainable and regionally significant place of work within Sturgeon County that can take
good advantage of existing and planned infrastructure, support planned residential growth, compliment
industrial expansion at the Villeneuve Airport and conform to and support regional planning objectives.
Policies to support industrial development in Villeneuve, in addition to the policies identified in Section
6.0 shall include:
6.4.1 It is the intent of the Villeneuve ASP to accommodate industrial development in the areas
identified for industrial in the Development Concept Map included as Figure 7 in the Plan.
6.4.2 The types of industrial development to be accommodated within these designated lands is best
described as light and medium industrial activities where any nuisance factor from noise, odour,
earthborn vibrations, heat, high brightness light sources, or dust occurs and is contained within
structures on the site and do not go beyond the site boundaries. Outdoor storage will be permitted, but
only with adequate screen fencing. No heavy industrial land uses are contemplated within the
designated industrial area.
6.4.3 Industrial lands within the hamlet will not be subdivided without a full outline plan and
amendment to the Villeneuve ASP indicating how the land will be serviced and subdivided, lot sizes,
zoning requirements and the phasing of development. Resource extraction, where permitted as per the
approved policies and bylaws of the County may occur prior to or in conjunction with subdivision and
development of these lands.
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6.4.4 Access to industrial lands from Highway 44 is subject to Provincial approval and the Provincial
roadside development permit approval process. The County will cooperate with the Province in
managing highway improvement requirements through the County Development Agreement process on
industrial ASP amendments.
6.4.5 Industrial areas should accommodate linkages with the open space trail system that develops in
the hamlet. It is expected that the trail and open space system within the industrial areas will be limited
to providing access to pedestrian walkways adjacent to the road network where a designated trail
system combined with rural profile roadways can be implemented. Trail access between residential and
industrial land uses will be limited to formal connections between the residential area and the front
(roadway) entrance to the industrial lands.
6.4.6 Municipal Reserves for industrial development should be a combination of cash in lieu and land
dedications to provide limited trail extensions into the industrial area and cash that will be used for park
development purposes elsewhere in the Hamlet.
6.4.7 Where industrial lands are located adjacent to designated residential lands within the hamlet
buffering of the industrial land use shall be provided on the industrial lands. This buffering should
consist of a combination of berms, fencing, landscaping, arterial standard roads with suitable buffering
and any other elements deemed appropriate by the Development Approving Authority during the
review of the Plan amendment. Buffering is intended to be accommodated on light industrial zoned
properties located between the residential and medium industrial land uses
6.4.8 Truck traffic moving to or from industrial lands within the hamlet will not be permitted to use
residential streets except where deliveries within the residential area are required. Truck traffic will be
channelled north along existing Highway 44 to connect with other regional highways.
6.5 Hamlet Open Space and Recreation
The Villeneuve community and the Plan supports the creation of open spaces that are integrated
throughout the Hamlet through linear parks and a multi-purpose trail system. Open space in the
Villeneuve ASP includes extensive agricultural uses including crops or livestock as an interim use, active
and passive recreational uses including playing fields that are part of a school yard or community facility,
environmental and municipal reserves, stormwater management facilities and landscaped open space
with trail corridors.
Green/Open space is proposed west of the existing Hamlet Residential areas on the north side of
Highway 633, north of West Country Hearth. Open space can provide an effective buffer between
existing and new development. Because of the extent of land required to buffer older residential areas
from new development, the preferred land uses for lands west of the existing hamlet, north of West
Country Hearth is a school yard with playing fields. These uses fit with the terrain in the hamlet and
permit more extensive linear parks throughout the community. Other types of open space such as
Public Utility Lots may be considered for this buffer during detailed planning of the adjacent land uses.
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Open space and recreational uses will be guided by the following policies in addition to the policies
identified in Section 6.0, when situated within the Planning Area:
6.5.1 Pathways should accommodate multiple users and shall conform to current municipal standards.
In some developed areas, the pathways in open space will be the principal choice for pedestrians as
sidewalks will not be constructed on rural profile residential roads. Multi-purpose trails may be finished
with asphalt, surfaces constructed to the Sturgeon County General Municipal Servicing Standards or to
the satisfaction of the County Engineer.
6.5.2 Paths and trails should link the West Country Hearth senior’s complex and any destination points
in areas planned for residential, recreational, commercial, industrial and institutional land uses.
6.5.3 Paths and trails will consider the concepts outlined in the Sturgeon County Open Space Plan.
6.5.4 Open space shall be integrated into each quarter section of the Plan Area within a clustered
development design and shall include land dedicated as Environmental Reserve or Municipal Reserve at
the discretion of the County or retained within an Environmental Reserve Easement, Conservation Trust
or other form of ownership/management as approved by Sturgeon County. Open space granted in the
form of additional dedications will require at a minimum restrictive covenants or similar efforts to limit
subsequent development.
6.5.5 Linear open space for buffering and pedestrian/ bicycle access is recommended in all new
development and between new and existing development. Open space shall be planned so that all
space is observable, safe and where the exit can be observed from the entrance. Pathways and
vegetation shall be designed to CPTED (Crime Prevention through Environmental Design) standards. The
open space shall include a trail and associated landscaping constructed to the satisfaction of the
development authority. Figure 9 illustrates a linear open space concept for the Villeneuve ASP Plan.
6.5.6 Sturgeon County should endeavour to work with the local recreation board to determine longrange recreation needs and appropriate uses of cash-in-lieu funds. All cash-in-lieu funds generated from
hamlet lands will be applied to appropriate uses within the hamlet.
6.5.7 Environmental Reserves should be dedicated in such a manner that it provides for comprehensive
protection of natural features. Municipal Reserves shall be dedicated where and as permitted by
Sturgeon County.
6.5.8 Dedication of Environmental Reserve (ER) shall be considered by the County as part of the Outline
Plan approval process.
6.5.9 The introduction of intensive agricultural uses (Confined Feeding Operations as defined in the Land
Use Bylaw) is not permitted in the Plan Area.
6.6 Infrastructure
The Hamlet of Villeneuve presently has piped water and sewer services. Water service is extended from
the east from a connection to the Morinville water line and runs through Northern Lights subdivision
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and the heliport. This service provides potable water for existing development and fire suppression for
West Country Hearth. The airport currently trucks water to a reservoir on the airport site for potable
and firefighting requirements. The recent Sameng Water study, completed in 2010, has found that
water service can be upgraded to accommodate all proposed hamlet growth with the addition of a new
pump station in a location just west of Northern Lights. This will increase flows on the existing line to
meet future requirements. Reservoir expansion and a delivery network will be required to complete the
service network. The pump station at the reservoir will also need to be expanded to upgrade pressures
and flow for fire suppression purposes within the community and in new areas once
industrial/commercial development commences north of the existing hamlet. These improvements will
be developer funded.
Wastewater services to the existing residential and airport uses are provided by a lagoon on the south
edge of the hamlet. The lagoon is a double cell lagoon built with capacity to double in size. It is
currently near capacity, but cannot meet the long term needs of the hamlet, even if doubled. New
residential and industrial/commercial growth will require new wastewater infrastructure services
extended to the Hamlet from regional facilities. The nearest connection is in Parkland County 5 miles
south of the hamlet along Highway 44. A new pump station will also be required to provide service to
new development and it is planned for lands at the south end of the existing hamlet. Once connections
to regional facilities can be made, the existing lagoon can be retired and significant amounts of land
once required for the lagoons and setbacks from the facilities can be freed for future development.
These improvements will be developer funded as well.
Topography in the planning area is very flat, giving rise to concerns about the permeability of new
development surfaces and the need to manage greater amounts of runoff as development proceeds.
New development will conform to the requirements of the recently completed Sameng study on storm
drainage in the two hamlet drainage basins and off-site flows to the Sturgeon River. While storm
drainage within the hamlet will be handled through a system of dry ponds and ditching, there are offsite improvements that will be required downstream to ensure stormwater flows can be managed
without flooding. Improvements are necessary to lower the channel by up to 2.5 metres in some
locations to lessen restrictions on flows. These improvements will be undertaken in advance of
increases in downstream flows through off-site requirements to be addressed by developers.
In addition to the policies identified in Section 6.0 of this Plan, all infrastructure development shall
follow these policies:
6.6.1 All costs of servicing (municipal infrastructure, shallow utilities) for future development will be
borne by developers after any applicable grants or other Federal, Provincial, Regional or County sourced
financial assistance that a project might qualify for.
6.6.2 Sturgeon County will assist developers investing in the community infrastructure to recover a
portion of the costs to extend services from those who benefit from any extensions. This will be done
through servicing agreements and the provisions of the Municipal Government Act.
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6.6.3 Applications for subdivision and development within the Plan Area require a stormwater
management plan, prepared to the satisfaction of the County, addressing stormwater on both local and
regional service basin levels and meeting the guidelines of Alberta Environment. Stormwater
management plans will conform to the recently completed Sameng storm water assessment and
drainage requirements in the hamlet and off-site.
6.6.4 The priority for stormwater management is to include the use of surface drainage along rural
profile roads within the new areas of the community north of Hwy 633. Stormwater drainage facilities
that incorporate dryponds are preferred over ponds with open water. Stormwater management
facilities that retain water may be acceptable north and south of Hwy 633 in association with new
development, subject to design features that minimize the attractiveness of ponds as habitat to wildlife
(birds).
6.6.5 Developers will be responsible for the costs of improvements to establish and maintain storm
drainage control within the Villeneuve drainage basin and outside the planning area to mitigate impacts
by accelerated drainage flows originating within the developed hamlet.
6.6.6 Stormwater management facilities may be developed as amenities for the community; these
facilities may be designed as engineered dryponds when subdivision occurs and accommodate
naturalized vegetation, playing fields or other active or passive recreational activities. However, they
will remain PUL sites not eligible for designation as MR.
6.6.7 Development of the hamlet shall be managed to occur in a contiguous manner that does not
permit “leapfrogging” development. Airport development is considered to be contiguous development,
and all new development at the airport shall be serviced within the Airport service network or through
extension of municipal services.
6.6.8 Edmonton Airports will be permitted to continue to use wastewater services through the
connection to the existing lagoon and eventually to a new regional connection until their wastewater
requirements exceed original design flow caps to the lagoons. At that point, incremental use of the
improved wastewater facilities will require recovery payments to developers or the County for the
extension of new facilities and the upgrading of hamlet wastewater capacity. The point at which design
flows are exceeded will be determined by the County Engineer.
6.6.9 Developers shall loop new water service into existing hamlet water lines and future development
to create more balanced water distribution networks.
6.7 Transportation
The existing Hamlet of Villeneuve is bounded by Highway 44 and bisected by Highway 633. As a result,
all approvals and proposals for development and access onto the highways must meet the standards
and specifications of Alberta Transportation (AT), and this ASP must receive ministerial approval.
Additionally, internal subdivision roads proposed within the Plan Area must meet the standards of
Sturgeon County. Analysis of the roadway network in Villeneuve and modelling of future activities was
prepared as a background report to this Plan by BUNT Engineering in October 2010.
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During community consultations, residents indicated a belief that the intersection of Highway 44 and
Highway 633 posed safety issues. The residents had concerns about traffic speed as well as traffic
volume on the highways, and were concerned with pedestrian safety on the roads.
In order to adequately access new development, access to Highway 633 will be required for new
subdivisions. Service road access to Highway 633 is seen as problematic because of the number of new
intersections. AT has indicated that access along Highway 633 will be limited, and no new accesses
along Highway 44 will be permitted. The expansion of the Hamlet west along Highway 633 may require
speed reductions or bypasses or both to preserve the traffic corridor. Modelling of the growth
associated with development of the hamlet and growth associated with non-development related traffic
on Highway 44 indicates a need to twin Highway 44 by 2030. This may be best accomplished to current
standards by moving the highway to the Hamlet Reserve land between the hamlet and the airport. This
may also suffice as a good route for the planned outer ring road.
In addition to the policies identified in Section 6.0, the following policies shall be followed in the
development of the Hamlet:
6.7.1 Highway 633 will be the main road to access Hamlet development and services.
6.7.2 All new internal roads shall be funded and constructed by developers to meet Sturgeon County
standards. A major collector roadway will create a spine for the residential roadway network within the
planned residential lands. Intersections with Highway 633 will be spaced no less that 400m apart.
6.7.3 The County will request that AT reduce the maximum speed limit on Highway 633 from Highway
44 west to the airport access as development occurs.
6.7.4 Applications for subdivision or development within the Plan Area are required to obtain Roadside
Development Permits and any associated approvals from AT where access is sought for a proposed
development onto a provincial highway or onto a County road at a point within 400 metres of a
provincial highway. The County will work with AT and, where appropriate, use Municipal Servicing
Agreements to effect conditions stated in roadside Development Permits within AT jurisdiction.
6.7.5 The opportunity to design and construct a noise attenuation facility (including an earth berm and
heavy fence) should be explored with AT and private landowners along the west side of Highway 44
north and south of Highway 633 to address Hamlet concerns about highway related noise.
6.7.6 Any amending Plan should accommodate the possible realignment alternatives of the provincial
highways to better separate the Hamlet from the airport, and improve the safety and access to the
community.
6.7.7 Any upgrades required along the provincial highways as a result of new development shall be
funded by developers and constructed to meet AT standards.
6.7.8 The opportunity to realign Highway 633 south of the Plan Area should be explored with AT to
address Hamlet concerns over high traffic volumes, traffic speed and safety within the community.
6.7.9 The ability to segregate airport and industrial vehicle traffic from hamlet residential traffic should
be considered where possible.
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6.7.10 Pedestrian opportunities should be incorporated into amending plans with pathways, parks, and
open spaces. The combination of an open space pedestrian walkway system and road walkway system
will link residents with amenities, creating a walkable community.
6.7.11 Opportunities to provide a safe pedestrian crossing point across Highway 44 should be explored
to address Hamlet concerns with pedestrian traffic travelling between residential land uses and the
cemetery on the east side of Highway 44.
6.7.12 Direct access onto Villeneuve Road North and/or south will not be permitted from new
development. Indirect emergency access may be accommodated, but regular traffic for even secondary
connections is inappropriate for traffic generated from development not fronting the road.
6.7.13 During the anticipated life span of this ASP it is unlikely there will be a financial model that would
support public funded transit to Villeneuve. A minimal “lifeline” service, a Taxi Scrip program or a
municipal program of volunteer drivers running a not-for-profit transportation service is currently
considered the best option to accommodate a commuter oriented transit service for the Hamlet.
6.7.14 Temporary gravel access roads for secondary (emergency)access may be required for initial
development proposals.
6.7.15 Traffic Control signals for new and existing intersections on Highways 44 and 633 should only be
constructed when warranted. Monitoring of traffic levels and growth will be required to establish when
the warrants are achieved. Where intersection signalization warrants are met along provincial
highways, according to AT standards, roundabout intersection treatments should be considered over
traffic signals.
6.7.16 Illumination of intersections should be implemented with signalization and financed as an offsite
to development where the improvements are required because of new development.
6.8 Villeneuve Airport
Edmonton Airports has plans to expand the Villeneuve Airport in the short- and long-term.
The Master Plan identifies a Business Park in the southeast quarter of Section 15 on the Airport lands. If
the Hamlet Reserve lands are not developed for a highway corridor by Alberta Transportation, any land
uses located adjacent to the business park will need to be compatible with the proposed airport uses.
The Villeneuve Airport Master Plan also indicates a phasing plan for developments based on growth and
servicing. Figure 5 illustrates the airport development plan for Villeneuve Airport.
The Villeneuve Airport anticipates future connection into the existing County piped water system.
Edmonton Airports, the development industry and Sturgeon County will work cooperatively to achieve
this servicing connection. This service connection will attract a greater range of businesses to the
Airport, creating economic and tax benefits and improve fire rating for all airport development.
It is very important that the Airport be selective in the types of future industries and services it allows on
Airport lands. This is also true for lands surrounding the Airport identified for future growth. Future
uses should be low polluters that conform to all Transport Canada regulations, examples of which might
include outdoor storage or aviation related uses.
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The Residential Airpark, located on the western Villeneuve Airport lands, will allow for serviced
residential lots that are a minimum of 0.33 hectare (0.8 acres) lots. These lots are sufficient size to allow
landowners to have a hangar for their private aircraft. This creates an opportunity to provide for an
alternative lifestyle, unique to the Villeneuve community.
In addition to the policies identified in Section 6.0, the following policies shall be applied in the
development of the Airport lands at Villeneuve:
6.8.1 The purpose of a Residential Airpark is to create residential development with lots that provide
direct and secure access to the taxiways or runways. This development can include a single-family
dwelling, a hangar and accessory buildings.
6.8.2 All Residential Airpark development must include a residence and a hangar facility for each lot.
6.8.3 Minimum lot size for a Residential Airpark lot shall be 0.33 hectares (0.8 acres) for serviced lots.
6.8.4 Detailed architectural and design guidelines will be prepared by Edmonton Airports to ensure high
quality residential hangar development to control height, elevation, frontage, roof lines and other
elements to ensure a high quality development. All Airport development applications will be reviewed
by Edmonton Airports prior to County consideration, where applicable, and no development falling
within municipal jurisdiction will be permitted without the approval of Edmonton Airports and Sturgeon
County through their separate approval processes. MDP, LUB and ASP amendments, where appropriate
will be required to ensure development conforms to County standards.
6.8.5 Sturgeon County and Edmonton Airports will work together to limit impacts from aviation uses.
6.8.6 Business Park development on the Airport lands should be directed to the southeast portion of the
Airport lands and should be considered for commercial and light/medium industrial land uses.
6.8.7 A retail commercial component is intended to be developed in the Villeneuve Airport Business
Park. Lands with high visibility and the best access should be reserved for commercial type uses and
land with less visibility and reduced access allocated for industrial purposes.
6.8.8 Uses considered appropriate for the on-airport Business Park include light and medium industrial
and manufacturing uses contained entirely within a building, offices, service industries and
limited/restricted outside storage with adequate fencing/ screening.
6.8.9 All Business Park uses shall provide a landscaping plan including planting and fencing. Where the
business park is situated immediately adjacent to a residential zone, a buffering strategy including
planting, fencing, berms and other buffering elements, as appropriate (e.g. shielded lights, noise
attenuation, site plan adjustments), are required on business park lands to minimize impacts on
adjacent residential uses.
6.9 Sand and Gravel Extraction
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The Villeneuve ASP Plan Area is within the Calahoo-Villeneuve Sand and Gravel Extraction (C-VS&GE)
ASP area. Dust and noise from gravel trucks as well as safety concerns arising from the number of
vehicles using Highway 44 was identified as a community concern. This Plan, along with the C-VS&GE
ASP encourages communication between gravel companies and the Villeneuve residents.
In addition to the policies identified in Section 6.0, the following policies shall apply with respect to any
sand and gravel extraction within the Planning Area:
6.9.1 No sand and gravel extraction will be permitted on or within 800 metres of lands planned for
residential land uses within the Hamlet planning area.
6.9.2 Sturgeon County should endeavour to meet and develop a strategy with the gravel and operations
groups in the area to address the dust, noise, truck traffic speeds and other issues. Gravel truck
operators are encouraged to use devices to prevent rocks flying off from gravel trucks.
6.9.3 The opportunity to obtain contributions for a noise attenuation facility on the west side of Hwy 44
should be explored with the Gravel industry through the Calahoo-Villeneuve Gravel Extraction Advisory
Committee to address Hamlet concerns over noise from trucks that permeates the area.
6.9.4 The Plan supports options to extend rail service to the gravel extraction area and the gravel
operators which might provide an opportunity to reduce or replace the number and frequency of trucks
on roads and highways adjacent to or within the Hamlet.
6.9.5 This Plan cannot accommodate resource extraction prior to the designation of residential land uses
in the plan area. The proximity of resource extraction quarter sections to both existing residential and
airport uses significantly limits opportunities for gravel extraction with the necessary setbacks and
restrictions on noise, dust and traffic. The Plan has been designed to accommodate resource extraction
on currently designated lands immediately outside the Planning Area and on some lands in the Planning
Area that currently exceed the appropriate setbacks. It is anticipated that gravel extraction on
designated lands can proceed if undertaken within 15 to 20 years in accordance with the objectives of
the Capital Region Plan. Without prompt extraction of the resource within that time frame, it is
conceivable that residential designation and future development might preclude resource extraction
from some adjacent lands.
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7.0 Phasing of the Plan
The Municipal Government Act (MGA) requires that an ASP address development phasing.
Development phasing is important because it :
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Has a significant impact on the efficiency and effectiveness of development and the
community from the developer’s, individual resident’s and the County’s perspective.
Has a direct impact on the developer’s returns on investment as infrastructure is
extended to create more residential and non-residential lots for sale.
Has an impact on the operational and service requirements that must be met by the
municipality in providing municipal services to residents and the community.
Has a direct impact on the costs incurred by the municipality to provide services.
Has a direct impact on the local markets over demand for lots.
All future development will be considered based on existing infrastructure and requirements to extend
new or upgrade existing infrastructure. If new roads are required, or if existing roads require upgrading
as a result of new development, it will be the full responsibility of the developer to do so to the
standards and requirements of Sturgeon County and/or AT. Likewise, water and wastewater system
upgrades for transmission, collection or reservoirs are required to support new development and it will
be the responsibility of the developer to ensure his plans are in accordance with the standards and
requirements of Sturgeon County and Alberta Environment. Sturgeon County will assist developers in
recovering financial contributions from adjacent land owners benefiting from the extension of services
through development agreements set up under the provisions of the Municipal Government Act.
7.0.1 The first priority area for development is the infilling of existing Hamlet Residential lots north and
south of Highway 633 and immediately adjacent lands south of Highway 633. Airport development and
industrial lands to the north of the existing hamlet can be developed within this priority, subject to the
provision of full services.
7.0.2 The second priority area for development are the lands designated for development that are not
immediately adjacent to existing hamlet areas south of Highway 633. The Villeneuve Airport and
industrial lands north of the existing hamlet can be developed within this assigned priority subject to the
provision of full services.
7.0.3 The third priority for development of residential lands are the lands north of Highway 633 and
immediately adjacent to the existing hamlet. Airport lands and industrial lands north of the existing
hamlet can be developed subject to the provision of full services.
7.0.4 The fourth priority for development of residential lands are the remaining lands to the west of the
third priority lands north of Highway 633. Airport lands and industrial lands north of the existing hamlet
can be developed subject to the provision of full services.
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7.0.5 The fifth priority for development is the proposed Hamlet reserve area in the southwest quarter of
Section 17 and the northwest quarter of Section 8. Hamlet Reserve areas in the west half of Sections 18
and the northwest quarter of Section 7 also fall within this priority, subject to suitable zoning and the
provision of municipal services.
7.0.6 All development must be staged in an efficient, contiguous and well planned manner to facilitate
servicing extensions, the provision of community facilities and minimize the costs of development.
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8.0 Plan Implementation
The Villeneuve ASP is intended to serve as a policy guide in order to assess more detailed Outline Plan,
subdivision and land use bylaw amendments to accommodate growth within the Hamlet.
The Sturgeon County MDP is the guiding document for all development within the County. The Land
Use Bylaw establishes the land use rules and regulations. The Villeneuve ASP presents a greater detail
of planning within the plan area and is consistent with both the MDP and the Land Use Bylaw. Outline
Plans, to be prepared by private developers interested in expanding the Hamlet will eventually become
amendments to this Primary ASP and will provide the detail required to manage growth. Development
in the Plan Area should be consistent with policies contained within this ASP and should reflect the
vision of the community. The Villeneuve ASP does not repeal, replace or otherwise diminish any other
statutory plan in effect in the Plan Area except by specific amendment.
Implementation of this Plan will consider the following policies:
8.0.1 A formal process including preparing and adopting an Outline Plan is required to amend this plan.
8.0.2 Applications to amend this Plan require documented community consultation and County Council
agreement it is consistent with the Villeneuve community vision.
8.0.3 The time horizon for this Plan is 20 years. The vision, objectives and policies of this Plan should be
reviewed every 10 years to ensure the Plan direction continues to reflect the vision of the community.
8.0.4 The Sturgeon County Municipal Development Plan will require amendments to accommodate the
recommendations of this Plan. Amendments contemplated include a Hamlet fringe area where
development applications having an impact on the community /ASP can be reviewed and assessed.
8.0.5 The Sturgeon County LUB will require amendments to accommodate the recommendations of this
Plan. Amendments contemplated include the creation of a new zone for urban style hamlet residential
lots, the creation of a light industrial zone and the creation of a Hamlet Reserve zone, all to include
permitted and discretionary land uses, development guidelines and requirements for new development.
8.0.6 Concurrent with the adoption of the Villeneuve ASP, an amendment to the Calahoo-Villeneuve
Sand and Gravel Extraction ASP (as amended) will be considered to exclude the Villeneuve ASP Planning
Area from that existing ASP. An amendment is also contemplated to identify the perimeter of
residential areas within the hamlet as the starting point for any 800m setbacks to active sand and gravel
extraction activities. This will permit ongoing resource extraction while the community grows and allow
the industry to organize extraction so that residential growth does not preclude resource extraction.
8.0.7 Sturgeon County Manager, Protective Services, with the Manager, Planning and Development
Services shall prepare implementing regulations to require new hamlet buildings to be sprinklered.
8.0.8 The County may, at its discretion, use innovative means to finance, facilitate or promote growth.
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Appendix A: April 15, 2010, Meeting Notes from the Public Meeting for Villeneuve ASP
1.0 Introductions
Collin Steffes – Introduced the Planning consultant from Urban Revision Consulting Inc, Don Hussey
Don Hussey – Introduction to Villeneuve and Key attendees,
Mayor Don Rigney with Councillors - Karen Shaw, Ken McGillis (Area Councillor), Tom Flynn, Jerry Kaup
Senior Sturgeon County Staff – Chris Micek, Peter Tarnowsky
Engineering Consultants – David Yue (Sameng) and Ray Davis (BUNT)
Developer – Jan Butler (Landrex)
Don Hussey reviewed location of washrooms, exits, snacks, discussed rules of engagement and
participant rules.
Questions from the floor were addressed prior to attending to agenda items.
2.0 Villeneuve Area Structure Plan – What is it and Why is it back?
An Area Structure Plan (ASP) is a statutory Plan defined under the Municipal Government Act of Alberta
which details land use, service infrastructure, transportation networks, residential density and any other
matters Council feels is appropriate to address development issues.
The ASP is back because the hamlet retains real potential for growth from a local and regional
perspective despite the failure of the last ASP preparation process. The Development industry remains
interested in Villeneuve subject to certain servicing issues being resolved. Edmonton Airports has
extended one runway and is building new hangars at Villeneuve Airport as the Edmonton Muni begins to
close down. The Sturgeon MDP continues to identify Villeneuve as a growth node. It has been
suggested there is agreement among neighbouring municipalities within the region that Villeneuve is
suitable for a Priority Growth Area designation under the CRB Plan.
Concerns expressed in questions about development pressures and the nature of high density. Concern
expressed that the CRB Plan does not yet express intent that Villeneuve hamlet is a priority growth area
and objective #5 in handout suggests it is. The specific intent is not in the Plan, but the CRB Plan does
anticipate growth in existing hamlets.
3.0 Vision for Villeneuve Hamlet
Statements identifying a Vision for the future development of the hamlet of Villeneuve were identified
in the booklet distributed at the meeting. A request was made to identify any omissions or thoughts left
out, along with any priorities for intent. The vision elements were as follows:
1) They do not want high density development.
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Don Rigney noted he was a member of the Capital Regional Board and the guiding principles for the Plan
included density, growth and public transit. He also noted the form of growth would have to meet the
approval of the Capital Regional Board and that there may be many issues that must be addressed in a
way that is compliant with the CRB Plan.
The process of approval for the ASP will involve a referral by the County to the CRB for review on
compliance after second reading of the Plan by County Council.
2) Maintain the residential environment- somewhat rural with good access to urban facilities.
3) Lots of Space – in private yards, in public areas (roads) and across back fences (open fields).
4) Lot size, siting of houses and setbacks around houses create a Villeneuve feel or flavour.
5) Access to nearby urban settings and services from a rural environment is part of the vision.
These are the 5 key elements followed by quality of housing and development, desire for pre gravel
noise levels, neighbourliness, volunteerism, security (feel safe) and aging in place.
Request for clarification on what is high density. Villeneuve has probably some of the lowest hamlet
densities and the highest density in Sturgeon in the aging in place facility. Density can be a relative
measure – e.g. high density for Villeneuve would be townhouses at between 15 and 30 units per acre.
There are 64 units within the Aging in Place facility. This is not bad as it has broadened out the
residential opportunities for Villeneuve residents and allowed seniors to come back to Villeneuve after
having to leave to seek appropriate residential units.
The actual residential densities in Villeneuve vary with the area you focus on. There are some very small
lots and some large acreages. Consensus was that the densities were between 4 to 6 lots per acre on
average with a considerable variance in lot sizes.
What would developers consider high density and vision for Villeneuve? There is no current application,
but the densities noted in the Public Hearing at the end of 2007 were about 600 units per quarter
section or 3.75 units per acre in the Developer’s presentation. The Community wanted about 550 or
525 units per quarter (unsure of the final number), so there was not a big gap between groups.
Who defines density in Villeneuve? At the next meeting we will look at where land uses will be put and
how they will be developed. This will bring in discussions about densities and requirements for roads
and servicing to accommodate the numbers of units and people.
What happened with the last ASP and how will the outcome be different this time around? There is a
stated intent by County Council to complete the process this time around. The last time several issues
were mixed up (an expensive mix up), but the pressures for growth and the need to manage it remain.
Will this not be Déjà vue all over again? The County was somewhat overwhelmed but are happy to see
the group out tonight. The history is that there were some sticking points and there remain several
issues that need to be resolved. We will be preparing a public document within a public process and the
perception last time was that there was not a public process that was inclusive. Things will change this
time around. We still need a Plan to manage growth and County Council is committed to finalize and
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approve a Plan. We will include the preliminary engineering work this time on water and wastewater
services and undertake a transportation network analysis. We have included a larger planning area.
What is the benefit of a larger planning area? CN has indicated an interest in extending track to the
gravel pits and in so doing may be able to replace some truck traffic with rail traffic. This will address
several key issues for residents and CN is interested in being a stakeholder.
Work by Alberta Infrastructure and Transportation on Hwy 44 may lead to construction of an overpass
on the highway as part of an outer ring road which includes Hwy 44. The existing roadway may move.
The Airport is also interested in accommodating growth. It can grow a little without municipal services,
but it needs municipal services to grow by any significant measure. After the last ASP failed, the County
looked at the costs of extending services from Parkland County. They were priced at $11 million for
water and wastewater services, which cannot be covered by residential growth alone. A variety of
different types of residential, commercial and industrial growth may be necessary to cover the costs of
growth. St Albert service extensions may make sense as they may now be closer after annexation (the
west boundary is 5 miles away on Hwy 633).
What will be the land use for lands east of Hwy 44? This will be reviewed and considered in the next
workshop where we discuss what land uses will be located where and how they will be developed. The
boundary has moved to include Hwy 44 in the plans. Alberta Transportation will focus on the changes
and the location of the outer ring road. Including both sides of the highway in future plans is prudent.
What land uses might be accommodated on the east side of Hwy 44? The future land uses should be
addressed in the next public meeting. It was identified as possible industrial commercial land in the last
public hearings but we are not stuck with that. It could also be land for a future alignment for Hwy 44.
In the last ASP process, it was noted that the land was unsuitable for residential because of the safety
issues and the barrier Hwy 44 presented to the public.
Any other vision statements to be included? Yes, there should be something in the Vision statement
about a need for pedestrian and cycling trails in the community so that people do not need to walk on
the roads to get somewhere. Another goal might be to address residential densities.
4.0 Objectives for Preparing the ASP
There are 6 objectives summarized with defining points overleaf from the statements on the vision for
Villeneuve hamlet. These objectives were prepared for the previous ASP preparation process and our
objectives remain very similar to those earlier objectives. We have added some additional objectives to
include preliminary engineering for water and wastewater and transportation network and analysis. To
summarize them, we are talking firstly about establishing development policies which will guide efficient
and effective development in the Hamlet, establishing a development concept for the Hamlet, planning
for expansion and upgrading of municipal and utility infrastructure, establishing a good transportation
network and a transportation management plan, meeting the intent of the MDP for Villeneuve as a
growth node and developing a long range plan that promotes and allows for collaboration between the
community and various stakeholders.
Are these objectives complete? Do they address all the concerns you might have?
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Transportation issues should be elaborated upon in the objectives. Many in Sturgeon end up paying
much more to use regional transit to get to St Albert and Edmonton on daily commutes. This is very
expensive for those on limited incomes such as AISH and the numbers are high. Is improving transit
possible? Could we address these provisions in the Plan objectives as the high costs lessen the ability to
remain in the community? Transportation becomes an enabling thing for some residents.
Is affordable housing an objective that we need to include in these statements? New housing is more in
the order of $350 to $450 thousand. It is very high. Affordable is a relative term that is somewhat
ambiguous, but there is not much interest.
There should be some objectives that introduce the concept of good environmental decision making.
Can this be added here? We should be keeping a certain amount of green space in any planning for
parks and open space. We should be preserving environmentally sensitive areas and combining them
with a pedway and cycling system within the community. Many use Villeneuve as a staging point for
bicycle rallies. Seniors walk to the highway but cannot move safely on the roads as the speed limits are
high. There is a need to include Provincial highways in the Plan. The safety issue for pedestrians is big.
If the airport develops further, how can we ensure that the conflict between residential development
and airport operations is managed effectively? There is no scheduled airport traffic, so there are no NEF
contours for the airport to identify where development should be restricted. It is changing in any event
now that activity is being moved out to Villeneuve from the City Centre Airport. We should talk to
Edmonton Airports about identifying where these limits should be placed as development would
otherwise become a limiting factor for the airport as well. The City Centre airport generates complaints
because development has been permitted to occur where it is affected by airport noise.
Will EIA attend the next meeting and participate in these discussions. Evan Cameron is here as Sturgeon
County’s representative on the Edmonton Airports Board.
Can we get an environmental consultant to attend the workshops and discuss the possibilities and
considerations for environmental Plan objectives? It makes sense to mitigate environmental impacts of
an expanded hamlet earlier rather than later.
Can we discuss the development of commercial services in the hamlet that works for the businesses and
others already there? There are opportunities for a central commercial area that will create a sense of
“place” while serving all the residential areas instead of being spread throughout the future
development without focus. We need to create something more than just a couple of strip malls.
How can we talk about affordable housing in this community given what has occurred recently in St
Albert? We are concerned about the media hype that has been focussed on St Albert and their
situation. The intent of raising this topic was to elicit discussion and not embarrass the residents.
Evan Cameron, appointee to the Edmonton Airports Board made some observations. The planning area
boundary appears to be fairly small given the issues associated with sand and gravel operations to the
north, the large area of impact from the airport and the broader impact area from the industrial leases.
Should the planning area be expanded to Hwy 37 well east of Hwy 44 and north of the railway line? The
Planning Area is focussed on human activities in and around the hamlet. The expanded boundary for
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this ASP process does diversify the activities included, but it is primarily community focussed. It refrains
from going too far into many rural activities although the boundary could be changed to add to it if
necessary. Most of the in the proposed planning area and external to the proposed ASP planning area
falls within the Sturgeon County Sand and Gravel ASP. There are setbacks established in this plan that
limit development within 800m of existing sand and gravel operations and vice versa. The Sand and
Gravel ASP manages those activities well and the lands for expanding the hamlet will have to be taken
out of that ASP and put into the proposed Villeneuve ASP to manage urban style development.
Is there a limit to Airport expansion? The Villeneuve Airport Master Plan was approved by the Airport
Authority and put into the last ASP unchanged. Industrial and commercial development around the
airport is wholly contained on the airport lands. Non airside development is subject to County approval.
Will this be a “Nisku North”? The Airport lands are finite and require municipal services for most of the
proposed development to be accommodated. There are limits now on what can be developed.
What about airport development around the airport lands? There needs to be some consideration of
limits for expansion around the airport, whether they are airport related uses or other land uses.
Hamlet development will conflict with airport development if the proper policies are not put in place.
Airport expansion needs to be planned for in the expanded hamlet. No one can plead ignorance of the
airport or expansion of the hamlet here. One use can significantly limit the other use if we do not plan
well. The airport came to Villeneuve some time ago and is a done deal. Let’s not make the mistake of
developing inappropriate land uses that create limits to its use and growth.
There should be an objective to control the interface between any new development and the airport.
The extensions to the runway make some of the adjacent lands less desirable for residential and even
certain other less sensitive uses. A comment in the issues listing from the Developer’s issues is very
true: newcomers will be less sensitive than existing residents, who are sensitized to the existing use.
The proposed Villeneuve ASP is a Primary ASP. What is that? A primary ASP is a Plan that provides a
broad framework within which more detailed development plans can be prepared and adopted by
developers. The Developer would prepare a secondary plan that would have greater detail on the
locations and sizes of service infrastructure and where it is located. The Primary ASP is a Plan that
contains more specific guidance than the Municipal Development Plan, but less information than a
secondary ASP. The hierarchy of plans ensures that development generally conforms to County services
and infrastructure requirements and any new infrastructure will fit in with existing networks.
Is there green space on the lands between the airport and the proposed hamlet expansion? The airport
lands are all planned to be developed for commercial and industrial development or for airport
purposes in the Airport Master Plan. Airport related industrial activities and service providers will likely
take up much of this land. There is no planned green space on the airport site. In the last draft Plan for
the Hamlet, some green space was identified at the end of the runways to restrict development so there
was no new development directly under the runways. NEF contours are used to define the extent of
this area where no development can be approved at other airports. Unfortunately, with no scheduled
air traffic at Villeneuve airport, they cannot construct NEFs for the ends of the runways. We will ask
Edmonton Airports to help us better define where the edge of development should be located.
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Can a new road be developed from the Airport to Hwy 44 to divert traffic away from Hwy 633? Alberta
Transportation owns Hwy 633 and it is the planned access for the Airport now and in the future. The
traffic will include some industrial traffic through the hamlet, but AIT has already identified access
guidelines for future traffic and new development in the earlier process.
5.0 Issues for the Villeneuve ASP
The summary of issues in the last section of the booklet was reviewed. It included issues related to the
density of development; traffic and transportation related concerns; Noise from airports and highway
traffic; water and wastewater facility extension; prospects for new facilities; airport, commercial and
industrial issues; growth related issues and ASP process concerns.
How many people are “for” this? Do we want more population? Can we vote to say no to this Plan and
say no to growth? That is an option for each resident of Villeneuve, but you cannot hide for long from
the growth that is expected. The pressures for growth at the airport will remain. The Muni will close
and there will be some functions and activity transferred to the International Airport. Not all the
activities will go there, leaving some to move to Villeneuve. With that growth in jobs will come demand
for housing. There will be more demand for residential units in Villeneuve and the development
industry will strive to meet that demand. The risk facing the community is that if there is little
Villeneuve input in the preparation of the Plan, others will include their vision and you may not be happy
with the result. It will be to your advantage as existing residents in Villeneuve to participate in this
process, establish appropriate guidelines to manage growth and be involved in moulding the community
you want rather than sitting on the sidelines and letting it happen.
If the airport was not there, the pressures for growth would be less. The airport is there, the runway has
been extended and new hangars for jets are being built. This is how the growth was predicted to start.
More residential growth in Villeneuve will bring positive change too. With growth, there comes an
opportunity for schools so that children do not have to travel so far each day. The community can use
the process in a positive way to create and maintain a healthy vision for Villeneuve in the future.
Karen Shaw pointed out that their farm was rezoned industrial in Alberta’s Industrial Heartland and it
was difficult to have an impact on the rezoning once it got going. It is better for existing residents to
identify their current and future needs and ensure the community gets what it wants to make it strong.
Council is concerned and motivated to bring this process to a positive conclusion this time. They will pay
particular attention to how Villeneuve residents want the community developed.
Many moved to Villeneuve for the peace and quiet, to get away from St Albert. The airport will expand.
One long time resident noted she remembered when the Walmart in St Albert was the Tappauff farm.
St Albert is now on our doorstep. If you want peace and quiet, you may have to move away to get it.
Tom Flynn noted that the future was unfolding and that change and growth were coming. We now have
a Council that has the concerns of the community as a priority and they need participation by residents
to help plan for the future. Council would rather have the community participate than just let it happen.
The community wants Villeneuve to stay the same and you need to be proactive and forward looking to
get that. Villeneuve residents need to participate if the hamlet is to reflect their amenities and values.
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It was noted that the Area Councillor was not present at the meeting where the earlier ASP was brought
forward and killed when it failed first reading. This was a very disrespectful action taken against the
Councillor and the community who had put almost 3 years of effort into that draft Plan.
The last ASP was a disappointment, but that is water under the bridge. The final draft incorporated
about 85% of the work needed to create a good community plan. They appreciate the long term
sentiments and do not want to see the status quo change. But the community does need to pre-plan to
manage change as growth occurs. The community needs a coordinated plan, not jig saw pieces put
together. It is likely that not everyone will be satisfied but their input can and will be accommodated
within a plan for development. A coordinated plan can create positive growth that works.
6.0 Next Steps
The next meeting is tentatively scheduled for May 5 or 6. That is a Wednesday or Thursday. After some
consideration, the Thursday was felt to be the better date. Don will check on the availability of the hall
and confirm the date to those who have put down their contact information.
The timeline for the project includes a community workshop meeting in early May. A meeting is
planned with AIT and we will begin writing the ASP. In June we will circulate a draft report in the last
week at a 3rd public meeting. In July and August, we will review comments, revise the draft and prepare
for final circulation in September. The Plan can then go to Council for review and discussion. In
October, we have an election and then plan a Public Hearing on the proposed Plan in November. After 2
readings, the Plan can go to the Capital Regional Board for review.
At the second public meeting in May, we will look to confirm the vision, objectives and issues, look at
the allocation of land uses and discuss how the development of those land uses might be managed. We
will also discuss density and types of residential development. The group was questioned as to whether
setting up a tour of different residential density types would be appropriate to prepare for that
discussion. We would supply a list of locations with information on what you were to look at and we
would then have some common terms to base further discussions on density and housing type.
Could pictures and mock ups work? Not as well because a photo can be staged and the scale is often
not readily apparent. We would focus on Fort Saskatchewan, Morinville, St Albert and north Edmonton.
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Appendix B: May 13, 2010 Meeting Notes for the Villeneuve ASP
1) Welcome and Introduction
The meeting began with questions regarding the format for the meeting and need to look into land uses
and management of planning and development of growth in the hamlet. It was suggested that growth
would occur in the hamlet and that it was necessary to prepare a Plan to deal with it effectively. A
request was made to ask the group whether the proposed approach was OK. After additional discussion
on what was planned, the group was asked to confirm the approach but no issues were noted.
2) Creation of Small Groups Introduction to Land Use Allocations
The attendees were numbered into 5 groups randomly, but if they did not like their group topic, they
were told they could move to a group with a principal topic that was to their liking. The attendees were
then split into the 5 groups and the first workshop began.
3) Workshop Breakout – Future Land Use Allocations / Guidelines for Managing New Growth
Each of the groups explored a variety of issues related to the assignment of land uses throughout the
Planning Area for the ASP. In the five groups, each group was asked first to identify what land uses
should be located where. In the second half of the workshop each group was assigned one principal
topic that they were asked to work on for at least half of the time allotted. The principal topics included
infrastructure, transportation, residential, industrial / commercial and open space / recreation.
The groups produced a number of maps, some with individual features on them and others with large
areas marked out for different or integrated land uses. One group wanted to start with the land use
plan from the past exercise and simply add designations to the new areas that were added to the
planning area for this ASP. Other groups explored different land use allocations on the east and west
sides of Hwy 44. Conversations during the group sessions and material presented after each workshop
was completed were instructive in pointing out where and how development should occur:
Highway 44 Corridor: The key variants identified affecting future land uses were the long term location
of Hwy 44, as part of the Edmonton Region outer ring road. This highway could be relocated to the east
or west of its current position and either east or west of the airport. The final location will be a major
determinant on the development concept for the hamlet. While Alberta Infrastructure and
Transportation currently manages access to both Highways 44 and 633, the new ring road is expected to
have even more limited access, but will enable somewhat improved access to one or both of the existing
highways, depending upon the final alignment.
Activities/ Uses Affecting Developability: The operations and future development of Villeneuve Airport
have an impact on the developability of other lands within the ASP Planning Area. The flight paths into
and out of the two runways affect the allocation of land uses and the proposed industrial and
commercial land uses that will support the operations of the airport also have an impact on how
adjacent land uses should be located and developed. The existing wastewater lagoons operated by the
County on the southern boundary of the ASP planning area have an impact on future land uses. Alberta
Environment requires a 300 m setback for any development from the lagoons while they are in
operation. The amount of planned development in the Hamlet necessitates switching to an alternative
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wastewater treatment option, primarily because of the volumes, but the replacement of the lagoons will
be phased with the successful implementation of an alternative treatment option.
Existing development in Villeneuve deserves consideration as to how future development is situated,
how it is connected and the interrelationships that are established between existing and future land
uses. It has been accepted in the previous planning exercise and by many existing hamlet residents that
the existing residences along the west side of North Villeneuve Road be buffered from any new use by
open space. Accommodations have also been suggested to limit access from new development to North
and South Villeneuve Roads for primary access and even secondary access to avoid increased traffic,
overuse of the roads and to better manage vehicle speed and safety. Acceptance of these limitations on
development would have an impact on the future development of the Hamlet.
The location of Villeneuve Cemetery, on the east side of Highway 44 on church owned property has
created some issues within the existing hamlet as the highway forms an effective barrier for existing
residents to visit unless they can travel by vehicle. Even then, some feel there are considerable safety
issues at the intersection of Highways 44 and 633 that will affect development and hamlet life regardless
of the purpose of use of the intersection.
Defining Elements: The development of Villeneuve into a primary growth area requires the
identification and implementation of a set of defining elements that will integrate any future
development with the character and appearance of the existing hamlet. Based on the input received at
the first and second public meeting, the defining elements for the expanded hamlet would be as follows:
1) Create a Village “Feel” – The expanded hamlet should reflect many of the positive
attributes that brought the existing residents to live in Villeneuve and not only expand
the community from in a physical sense, but also from a social and environmental
perspective. The expanded hamlet should have a sense of place, it should be low
density, it should have the physical infrastructure (roads, municipal services, utilities)
necessary to support a significantly greater population, it should have commercial
services located primarily in a central location, and it should have industrial land uses
suitably buffered from residential land uses.
2) Create a Sustainable Community – New development in the expanded Hamlet should be
sustainable based on four distinct elements – environmental stewardship, economic
development, social conscience and fiscal responsibility. While primarily low density
residential development including a variety of different unit types will be permitted
catering to a broad range of age groups, the community has expressed concerns about
development which is not market based, does not preserve environmentally sensitive
areas or mitigate environmental impacts of development, does not fairly allocate the
costs of new development or leads to the introduction of undesirable social issues into
the community. A variety of different housing unit types may be permitted, but only if
mixed into the predominantly single family development. This would include limited
semi-detached units, three or four row/townhouses or small buildings with apartments
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dispersed and not concentrated on any street or neighbourhood. Higher density units
should be matched with open space and other amenities and integrated with all units.
3) Reflects the Existing Development Scheme – Residents expressed a desire to
have development guidelines that reflect the existing hamlet development. These
guidelines should also be replicated in any implementing Land Use Bylaw regulations
and would incorporate the following:

Open space in the form of small block and linear format parks for new
development.
 A combination of rural and urban roadway profiles in residential and industrial
areas integrated into a combined surface and underground storm drainage
system as permitted under the Villeneuve Storm Drainage Master Plan.
 Residential subdivisions that create a variety of lot sizes, frontages and types
with no concentrations of residential unit types except for single family
dwellings.
 Maximum height restrictions of 2.5 stories on all residential development.
 Varying side yard requirements between houses on each residential street.
4) Create a Walkable Community with Multipurpose Trails – Between destination points within
the Hamlet, including the commercial centre, the Airport, industrial areas, residential
areas, schools and recreation facilities, a system of multipurpose trails should be
planned and developed with each amendment to the Primary ASP to create a network
of walking/bike trails. By segregating the trails from the roads, they can be safer, can
reduce reliance on cars and trucks, can permit rural profile roads without expensive
infrastructure and readily support sound objectives of sustainability, walkability and
healthy communities.
5) Support Transit – An expanded Hamlet developed in a sustainable and compact fashion in
close proximity to employment opportunities reduces reliance on cars and trucks and
commuting. Within the Edmonton region, there are several interconnected transit
systems that offer much greater opportunities for efficient and cost effective
commuting. The Villeneuve ASP should accommodate one or more reasonably priced
options for transit to interconnect with the existing transit operations in the region. The
possibility of developing Park and Ride options was also discussed among attendees.
Limiting Elements: Villeneuve also has some elements that will affect how the lands in the community
should be developed as the community expands. Air traffic from the Villeneuve and St Albert airports
will have an impact on noise levels in the community and will affect how development occurs. Highway
traffic will affect how development occurs and will also lead to highway related noise attenuation
requirements if the highway continues to affect noise levels in the community. Highway design, access
and safety are also major considerations in the future development of the community.
The future growth of the hamlet will be severely constrained if services cannot be extended from nearby
regional connections in Parkland County or St Albert. Operations on industrial sites such as the railway
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line, near industrial development planned for the airport or on other lands suitable for industrial will
also have an impact on how development is accommodated and buffered.
Creating a Place: There was discussion in the large group in the first meeting and in some smaller
groups at the second meeting about the creation of a “place”. The intent of this reference was to create
a village centre, a combination of commercial, park and open space development. The concept
identified by the group was a Mainstreet Approach with angled parking and a transit centre. There
would be some community activity space and it would be situated a walkable distance from most of the
residential units in the new and existing area and that it contain murals on building walls and artwork,
planters and trees in the streetscape. There would be vehicle access via the road network and
pedestrian and bicycle access via the proposed multipurpose trails as it would be a destination point and
centre of the community. There would also be a variety of new commercial land uses that might locate
there including convenience stores, gas stations, restaurants and other commercial services.
Integration and/or Segregation of Uses: There were several point where discussion focussed on land
uses that could be integrated together successfully to create a more attractive, healthful and livable
residential environment. For example, there were several participants who indicated that the open
space and many recreational land uses should be integrated. Some recreational uses, because of their
traffic impacts (parking) and the nature of the activity (noise) do not fully integrate well and might be
kept separate. Other land uses such as industrial land uses should be buffered from residential land and
residential units, even if the criteria under the land use bylaw only permits land uses that create no
nuisance factor. They can still be integrated via the multipurpose trails and roads, but they should be
separated by berms, landscaping and other visual and physical breaks such as road right of ways so as to
better coexist within the hamlet.
4) Conclusion
Everyone still participating was thanked for their input and time. The possibility of a guided tour
between 4 communities to visit and gain more information about different residential housing options
via a bus trip on a Saturday or Sunday for about a 5 hour trip was raised with the group. Five attendees
signed up for this option with the clear preference being on a Saturday.
The next meeting was identified as the last Thursday in June and the topic would be a presentation of
the draft Plan for the community. This would be June 24 at 7 pm.
Meeting notes prepared by Urban Revision Consulting Inc
May 18, 2010
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Notes:
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Urban Revision Consulting Inc
780 483-7267 Voice
780 483-5887 Fax
dhussey@shaw.ca
www.urbanrevision.ca
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