Draft land-use framework

2008·6.2 MB·English

by  Alberta

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Draft Land-use Framework
alberta
Digitized by the Internet Archive
in 2016
https://archive.org/details/draftlandusefram00albe_0
Table of Contents
Executive Summary 1
1. Introduction 3
A. Why we need a new Land-use Framework 3
B. What is a L and-use Framework? 3
C. Consulting with Albertans 4
2. Where We Are Now 5
A. How Land Decisions are Made Today 5
1. White and Green Areas of Alberta 5
2. Responsibilities on Land Use 6
3. Municipalities 7
B. Growth Indicators 7
3. Where We Want to Be 9
A. Our vision 9
B. Desired outcomes 9
C. Guiding principles 9
4. Provincial Leadership 11
5. Land-use Regions and Plans 13
A. Provincial Outcomes 13
B. Regions Defined 14
C. Establishing a M odel for Regional Planning 14
D. Local Planning 16
1. Municipal Planning 16
2. Provincial Planning Carried Out at the Local Level 16
E. Appeal Mechanisms 16
6. Land-use Governance 17
A. Cabinet Committee and Land-use Secretariat 17
B. Regional Advisory Councils 17
7. Cumulative Effects Management 18
8. Conservation and Stewardship 19
A. Private Land Stewardship 19
B. Public Land Stewardship 20
Draft Land-use Framework 1
9. Information and Knowledge System 21
A. Information Management 21
B. Monitoring and Evaluation 21
C. Knowledge 22
D. Continuous Improvement 22
10. Aboriginal Peoples 23
11. Priority Actions for the Land-use Framework 24
A. Immediate Planning Priorities 24
1. Metropolitan plans for the Capital and Calgary regions 24
2. Southern Alberta Regional Plan 25
3. Northeast Alberta Regional Plan 25
B. Addressing Provincial Policy Gaps and Areas of Provincial Interest 25
12. Timeframe for Implementing the Land-use Framework 27
Glossary 30
Cover Art by David Moore, Equinox Design Consultants
ISBN: 978-0-7785-7020-2 (Printed Edition)
978-0-7785-7021-9 (Online Edition)
Pub No. 1/300
Printed May 2008
11 Draft Land-use Framework
Executive Summary
Strategy 1
Over the past 10 years, Alberta has enjoyed record
prosperity But this prosperity has brought new challenges Develop six regional land-use plans based on six new
land-use regions.
and responsibilities. Today’s rapid growth in population
and economic activity is p lacing unprecedented pressure
Alberta does not currently have formalized regional-level
on Alberta’s landscapes. Oil and gas, forestry and mining,
planning. Nor is there any formalized coordination
agriculture and recreation, housing and infrastructure are
between Government of Alberta land-use decisions on
all in competition to use the land — often the same parcel
of land. There are more and more people, doing more and Crown lands and municipal land-use decisions. To remedy
more activities, but on the same piece of land. This not this, the government will create six new land-use regions
and develop regional plans for each. The regional plans
only increases the number of conflicts between competing
will integrate provincial policies at the regional level; set
user groups, it often stresses the land itself. Our land, air
and water are not unlimited. They can be exhausted or out regional land-use objectives and provide the context
degraded by overuse. for land-use decision-making within the region; and
reflect the uniqueness and priorities of each region.
What worked for us when our population was only one or Municipalities and provincial government departments
two million will not get the job done with four, and soon will be required to comply with each regional plan.
five, million. We have reached a tipping point, where Strategy 2
sticking with the old rules will not produce the quality of
life we have come to expect. If we want our children to Create a C abinet Committee supported by a L and-use
enjoy the same quality of life that current generations Secretariat and establish a R egional Advisory Council
for each region.
have, we need a new land-use system.
Strong provincial leadership will be critical to the success
The purpose of the Land-use Framework is to manage
growth, not stop it and to sustain our growing economy, of land-use planning and resource management.
Establishing a f ormal governance structure for
but balance this with Albertans’ social and environmental
goals. This is what the Land-use Framework is about — implementing the Land-use Framework will be necessary.
To meet this need, the Land-use Framework will create a
smart growth — ensuring a f uture with plentiful
opportunities and a h ealthy environment. Cabinet Committee, supported by a L and-use Secretariat.
The Cabinet Committee and Secretariat will be responsible
for the development of regional plans in conjunction with
Notwithstanding Alberta’s tradition of local decision-
making, our consultations with Albertans indicate government departments and Regional Advisory Councils.
widespread support for greater provincial leadership on Strategy 3
land-use issues. This does not mean creating a h eavy
handed, centralized bureaucracy in Edmonton. It does Cumulative effects management will be the instrument
mean that the Alberta government must provide the kind used at the regional level to manage the impacts of
of p olicy guidelines and opportunities that the local levels development on land, water and air.
of g overnment cannot. The Land-use Framework will
Our watersheds, airsheds and landscapes have a f inite
leave local decision-making authority with the same
officials who currently exercise it. However, in the future, carrying capacity. Alberta’s system for assessing the
environmental impacts of new developments has usually
these decisions will have to be consistent with provincial
been done on a p roject-by-project basis. This approach
policies and guidelines. Accordingly, the Land-use
worked at lower levels of development activity. However,
Framework consists of six basic strategies to improve
it did not address the combined or “cumulative” effects of
land-use decision-making in Alberta.
multiple developments taking place over time.
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Draft Land-use Framework Executive Summary
Strategy 6
A c umulative effects management approach will be used in
regional plans to manage the combined impacts of existing Inclusion of aboriginal peoples in land-use planning.
and new activities within the region.
The provincial government will strive for a meaningful
Strategy 4 balance that respects the constitutionally protected rights
Develop a strategy for conservation and stewardship of aboriginal communities and the interests of all
Albertans. First Nations and Metis communities will be
on private and public lands
encouraged to participate in the development of land-use
Clean water and air, healthy habitat and riparian areas, plans. The Government of Alberta will continue to
abundant wild species and fisheries are all “public goods” support traditional use studies to document and share
that Albertans enjoy and value. The costs of supplying information on First Nations and Metis uses of p ublic land
these goods on private lands are left largely on the
to inform decision-making processes and strive to protect
shoulders — and pocketbooks — of our ranchers and and preserve identified sacred cultural sites for future
farmers. Public lands that are managed for a variety of
generations.
purposes also supply these goods. If Albertans value these
landscapes and the benefits they provide to all of us, we Priority Actions for the Land-use Framework
have to find new ways to share the costs of conserving
There are four immediate planning priorities that the
them. To do this, the Government of Alberta will develop
new policy instruments to encourage stewardship and provincial government will support and/or implement on
conservation on private and public lands. a p riority basis. These are: Metropolitan plans for the
Capital and Calgary regions, the Southern Alberta
Strategy 5 Regional Plan, and the Northeast Alberta Regional Plan. In
Establish an information, monitoring and knowledge addition, a number of p olicy gaps and areas of p rovincial
system to contribute to the continuous improvement interest will be addressed by the provincial government in
the short term.
of land-use planning and decision-making.
Good land-use decisions require accurate, timely and
accessible information. A s ound monitoring, evaluation
and reporting system is needed to ensure the outcomes of
the Land-use Framework are achieved. The Land-use
Framework will create an integrated information system to
support land-use planning, decision-making, and research.
The framework will include regular monitoring and
reporting on the overall state of the land, progress toward
achieving provincial and regional land-use outcomes, and
opportunities for continuous improvement. A c entral
component of this system will be the province’s new
Biodiversity Monitoring Program to supplement the
monitoring of land, air and water.
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Draft Land-use Framework Executive Summary
1 . Introduction
A. Why we need a new Land-use Framework money — lots of money when an economy is resource-
based such as ours. The goal of the Land-use Framework
Albertans have a special relationship with the land. Our
is to sustain our growing economy, but balance this with
prairies and parklands, our forests and foothills, the
Albertans’ social and environmental goals. This is what the
Northern Boreal and the majestic Rockies — each shape
Land-use Framework is about — smart growth — ensuring a
our communities and lives in unique and powerful ways.
future with plentiful opportunities and a h ealthy
Our province is big, beautiful and bountiful, and we are
environment.
grateful for the opportunities it has given us.
Over the past 10 years, the province has enjoyed record
prosperity. But this prosperity has brought new challenges
B. What is a L and-use Framework?
and responsibilities. Today’s rapid growth in population
and economic activity is p lacing unprecedented pressure It may appear that the Land-use Framework is something
on Alberta’s landscapes. Oil and gas, forestry and mining, new. It is not. In the first hundred years of our province’s
agriculture and recreation, housing and infrastructure are history, far-sighted leaders such as Ernest Manning and
Peter Lougheed responded to our growing population and
all in competition to use the land — often the same parcel
of land. There are more and more people, doing more and economy by putting in place new land-use guidelines.
more activities, but on the same piece of land. This not
In 1948, Premier Manning responded to the growth spurt
only increases the number of conflicts between competing
stimulated by the great Leduc oil discovery by dividing
user groups, it often stresses the land itself. Our land, air
the province into two areas. Public lands in the Green
and water are not unlimited. They can be exhausted or
Area were to be managed primarily for forest production,
degraded by overuse.
watershed protection, fish and wildlife management, and
We need to ensure this land — and all the activities it recreation. Permanent settlement was excluded, except on
sustains — is managed responsibly for those who come legally subdivided lands, as were agricultural uses other
than grazing. The White Area was designated for
after us. This means developing and implementing a l and-
use system that will effectively balance competing
settlement, including agriculture. Premier Manning’s
economic, environmental and social demands. Our initiative was an early and enlightened form of land-use
current land management system, which served us well planning.
historically, risks being overwhelmed by the scope and
A m ore recent example is the Policy for Resource
pace of activity.
Management of t he Eastern Slopes, introduced by Premier
What worked for us when our population was only one or Lougheed in 1977, during the last period of rapid growth
two million will not get the job done with four, and soon in the province. The Eastern Slopes Policy identified
five, million. We have reached a tipping point, where watershed integrity as the highest priority use for this
sticking with the old rules will not produce the quality of region of the province, followed by public recreation and
life we have come to expect. If we want our children to tourism. It stated that the management of renewable
enjoy the same quality of life that current generations resources would be the priority, but that non-renewable
have, we need a new plan. resource development — primarily oil and gas — would be
encouraged in areas where it was compatible. The policy
The purpose of the Land-use Framework is to manage
also mandated detailed sub-regional and local integrated
growth, not stop it. The Government of Alberta rejects the
resource management plans (IRPs) for its sub-regions.
simplistic view that to save the environment, we must stop
These IRPs included multiple objectives — timber, minerals
development. The best environmental regimes in the
and agriculture in addition to watershed, wildlife,
world are found in the wealthiest countries. And this is
fisheries, and recreation — but noted that “not all
not by accident. Protecting the environment costs
objectives will necessarily be achieved in all areas.”
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Draft Land-use Framework Chapter 1
The Land-use Framework thus represents continuity with transportation and energy associations; conservation
and environmental groups; recreational groups; and
past policy, not a b reak. There are precedents in which far-
academics.
sighted leaders responded to our growing population and
economy by putting in place new land-use guidelines. • May 2007 — S eventeen provincewide public
consultation sessions were held in 15 locations.
The Land-use Framework sets out an approach to manage
Albertans provided their views on the future of land
public and private lands and natural resources to achieve
use in the province through a workbook
Alberta’s long-term economic, environmental and social
goals. It p rovides a b lueprint for land-use management questionnaire.
• June 2007 to October 2007 — F our working groups
and decision-making that addresses Alberta’s growth
pressures. of stakeholders developed strategies and actions for
the government to consider in the following four
It complements the province’s water and air policies — primary policy areas: (1) growth and resource
Water for Life (2003), the Clean Air Strategy (1991) and management, (2) planning and decision-making, (3)
the Climate Change Strategy (2002) — all of which are conservation and stewardship, and (4) monitoring and
currently being updated. What uses are permitted on evaluation.
land — or more precisely, how they are done — clearly
• September 2007 to December 2007 — T he Alberta
impact adjacent watersheds and airsheds.
government sought input from First Nations and from
Metis community organizations. They provided their
It is j ust as important to recognize how land use is
views on the future of land use in the province in
different from air and water policies. It is relatively easy to
conjunction with their concerns on upholding their
reach broad consensus on the appropriate standards for air
traditional and cultural values.
and water: minimum standards must ensure that people,
wildlife or plants are not harmed.
Through these consultations, Albertans told us that they
want the following improvements:
The scope of a L and-use Framework is not so easily
defined. Is it about extending water and sewers from Provincial leadership to provide clear direction and
towns into adjacent rural communities? Or the proximity parameters for regional, local and landowner decisions.
of feedlots to populated areas? Or addressing cumulative
Integration and coordination of p rovincial policies
effects of development on the quality of our air, land and
governing air, water and land.
water on a region-by-region basis? Suffice to say, it is a
more difficult topic to contain than air and water, and the Clearer definitions of roles and responsibilities for
implementation of the Land-use Framework will entail land-use decisions at the provincial, regional and local
ongoing public discussion. levels.
Improved processes to deal with conflicts between land
users, including surface and subsurface rights holders.
C. Consulting With Albertans
Enhanced conservation and stewardship on both
Land-use decisions affect all of us. The ideas and opinions private and public lands to promote ecological
of Albertans have played a vital role in developing the sustainability.
framework.
Improved information sharing about the condition of
the land and the effects of activities on the land.
• May 2006 to December 2006 — I nput and advice was
gathered from a b road spectrum of stakeholders:
Increased consultation with First Nations, Metis
landowners; municipal leaders and planners; First
communities, stakeholders and the public to ensure fair
Nations, the Metis Settlements General Council and
opportunity to influence new policies and decisions.
the Metis Nation of Alberta; agricultural, forestry,
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Draft Land-use Framework - C hapter 1
2. Where We Are Now
A. How Land-use Decisions Are Made Today
Land-use decision-making in Alberta today is shaped by
the government’s 1948 decision to divide the province
into the White and Green Areas.
1. White and Green Areas of Alberta
The White Area covers about 39 per cent of the province.
It is largely comprised of land owned by individuals and
groups (homeowners, farmers, companies, organizations,
etc.). Generally, ownership rights are limited to the land
surface and do not include subsurface non-renewable
natural resources. While private landowners can make
decisions about how to use and manage their land, they
must follow laws, bylaws and regulations set out by
municipal and provincial governments.
White and Green Areas of Alberta
White Area Green Area
• S ettled lands • Forested lands
• C overs about 39 per cent of • C overs about 61 per cent of
Alberta Alberta Note 1: There are approximately 1,330
quarter sections — and scattered small
• T hree-quarters privately owned • N early all publicly owned pGorcekene t sA r—e ao f P pu rbilviact e L alnadn.d within the
- b y more than 1.7 million
individual title holders (50,000
Note 2: The eight Metis Settlements cover
own or use most of the land 1.28 million acres.
for agriculture)
• P rimarily in the populated • Primarily in northern Alberta,
central, southern and Peace some in the mountains and
River areas foothills
• Main land uses: settlements, • Main land uses: timber
agriculture, oil and gas production, oil and gas
development, tourism and development, tourism and
recreation, conservation of recreation, conservation of
natural spaces and fish and natural spaces, watershed
wildlife habitat protection and fish and
wildlife habitat
• A uthority to set regulations and • A uthority to set regulations and
make decisions is primarily with make decisions is primarily with
municipal governments on the provincial government
private land and with the
provincial government on
public land
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Draft Land-use Framework Chapter 2
The Green Area covers about 61 per cent of the province, Culture and Community Spirit is responsible for the
mainly in the North and along the Eastern Slopes. It is protection of Alberta’s historic places. The ministry
largely owned by the provincial Crown and is referred to
regulates developments on Alberta’s public and private
as public land. It is set aside primarily for renewable and lands by protecting designated historic places,
non-renewable resource development, limited grazing, archaeological and palaeontological sites, aboriginal
conservation, and recreational use. The provincial heritage traditional use sites, and historic buildings.
government has the mandate to manage how public land Conservation and stewardship incentives include grant
is used. programs and municipal partnerships.
The federal government controls about 10 per cent of the Energy manages the development of p rovincially owned
total land base in the White and Green areas. This federal energy and mineral resources through the sale of oil, gas
land is p rimarily comprised of national parks, Indian and mineral rights. The ministry is also responsible for the
assessment and collection of
Reserves and military bases and installations. Alberta’s
land-use planning and decision-making authority does not non-renewable resource revenues in the form of royalties,
ordinarily apply to federal land. and freehold mineral taxes. Resources managed by the
ministry include natural gas, conventional oil, oil sands,
In 1938, Alberta set aside land for Metis use. In July 1989, petrochemicals, electricity, coal and minerals, and
the Government of Alberta and the Federation of Metis
renewable energy (wind, bio-energy, solar, hydro,
Settlement Associations signed the (Alberta) Metis
geothermal, etc.).
Settlements Accord which provided the foundation for the
eventual transfer of land (1.28 million acres) to Metis Environment oversees policies and initiatives associated
Settlements and provided for a C o-Management with air quality, water management, waste management,
Agreement for the management of sub-surface resources land use and climate change. The ministry manages the
under the Settlement lands. provincial environmental review process and coordinates
public education on conservation and environmental
protection. In addition, the ministry is responsible for
2. Responsibilities for Land Use
environmental monitoring and compliance programs to
The Government of Alberta has a number of p rovince-
enforce Alberta’s environmental legislation and regulations.
wide policy responsibilities across several departments and
boards that set rules for land use.
Municipal Affairs provides authority and advisory
services to municipalities for municipal planning, and
Aboriginal Relations works with First Nations and Metis
subdivision and development control. Under the Municipal
people to strengthen their participation in the economy,
Government Act, municipalities may adopt plans and land
develop organizational and community capacity and
use bylaws and make planning decisions to achieve the
ensure their constitutional rights are respected. The
most beneficial use of land within municipal boundaries.
ministry also advises and works with other ministries,
industry and the federal government on policies and Sustainable Resource Development manages the use of
initiatives that affect aboriginal people.
Alberta’s public land; manages and protects Alberta’s forest
resource (wildfire, forest industry and forest health); and
Agriculture and Rural Development advises and works
manages Alberta’s fish and wildlife resources.
directly with other provincial ministries, municipal
government, landowners, and industry organizations in Tourism, Parks and Recreation has a range of
their efforts to sustain and expand the agricultural
responsibilities on Alberta’s lands, which include
industry through policies, legislation and strategies. As
managing Alberta’s network of p rovincial parks and
such, the ministry has responsibility for legislation that tourism industry development.
affects agricultural land-use on more than 52 million acres
of land in the province. In addition, the ministry is
responsible for fostering a vibrant and sustainable rural
Alberta.
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Draft Land-use Framework Chapter 2