St. Andrews Airport Area Secondary Plan: Regulations and Development Guidelines, Lecture notes of Sustainable Development

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St. Andrews Airport Area

Secondary Plan

Prepared For:

Rural Municipality of St. Andrews

Selkirk and District Planning Area Board

August 2012

St. Andrews Airport Area Secondary Plan R.M. of St. Andrews | Bylaw No. XXXX

ST. ANDREWS AIRPORT AREA SECONDARY PLAN

Rural Municipality of St. Andrews

& Selkirk and District Planning Area Board

August 2012

St. Andrews Airport Area Secondary Plan iii

MAP 1 – Land Use Plan

MAP 2 – Transportation Network Plan

• 1.0 INTRODUCTION TABLE OF CONTENTS
• 1.1 Purpose of a Secondary Plan
• 1.2 Location
• 1.3 Regulatory Framework
  • 1.3.1 Federal Airport Regulations
  • 1.3.2 Development Plan
  • 1.3.2.1 Secondary Plans
  • 1.3.2.2 Zoning Bylaw
  • 1.3.2.3 Subdivision
  • 1.3.2.4 Building Bylaws
  • 1.3.2.5 National Building Code
  • 1.3.2.6 Capital Expenditures
  • 1.3.2.7 Development Agreements
  • 1.3.2.8 Land Acquisition
  • 1.3.3 Interpretations
• 1.4 Background
• 2.0 COMMUNITY PLANNING PROCESS
• 2.1 Analysis of Stakeholder Input
• 3.0 ST. ANDREWS AIRPORT AREA SECONDARY PLAN
• 3.1 General Planning and Sustainability
  • 3.1.1 Objectives
  • 3.1.2 General Policies
• 3.2 The Study Area
• 3.3 Area South of the Airport
  • 3.3.1 Commercial and Industrial
  • 3.3.1.1 Introduction
  • 3.3.1.2 Objectives
  • 3.3.1.3 Policies
  • 3.3.2 Parks, Green Space, and Pathways.....................................................................
  • 3.3.2.1 Introduction
  • 3.3.2.2 Objectives
  • 3.3.2.3 Policies R.M. of St. Andrews | Bylaw No. XXXX
  • 3.3.3 Transportation
  • 3.3.3.1 Introduction
  • 3.3.3.2 Objectives
  • 3.3.3.3 Policies
  • 3.3.4 Municipal Services
  • 3.3.4.1 Introduction
  • 3.3.4.2 Objectives
  • 3.3.4.3 Policies
  • 3.3.5 Sustainable Building Design and Landscaping
  • 3.3.5.1 Introduction
  • 3.3.5.2 Objectives
  • 3.3.5.3 Policies
• 3.4 Area North of the Airport
  • 3.4.1 Objectives
  • 3.4.2 Policies
• 3.5 St. Andrews Airport Lands
  • 3.5.1 Conceptual Airport Land Uses..............................................................................
• 4.0 IMPLEMENTATION AND MONITORING
• 4.1 Implementation
• 4.2 Financing
• 4.3 Monitoring

St. Andrews Airport Area Secondary Plan 1

1.0 INTRODUCTION

1.1 Purpose of a Secondary Plan

The purpose of the St. Andrews Airport Area Secondary Plan is to establish policies that will guide future land use and development for the area surrounding the St. Andrews Airport. The St. Andrews Airport Area Secondary Plan is a bylaw adopted by the St. Andrews Council and is generally consistent with the Development Plan, in accordance with the provisions of The Planning Act.

The St. Andrews Airport Area Secondary Plan:

Considers the future expansion of the airport.

Encourages future commercial and industrial development that is compatible with the airport.

Promotes the area as a business centre that is exemplary in green building design, energy and water conservation, waste reduction and environmentally conscious landscaping practice.

Establishes improved development and design standards for commercial and industrial development.

Plans for a safe and efficient transportation network that will provide for future access into the area.

Promotes the development of walking and biking pathways.

Reduces conflict between neighboring land uses through height and noise provisions, adequate buffering and separation distances.

Restricts any land use that is incompatible with an airport and associated commercial and industrial development.

The Plan will be effective for approximately five years from the time of its adoption and be reviewed and revised after the review and rewrite of the Selkirk and District Planning Area (SDPA) Development Plan.

Ewen Dr

Davis Pl

Scott Dr

Celtic Pl

Club Road Duncan Pl

East Gate

West Gate

Oakes Bay

Clifix Rd

Gogol Bay

Liss Road

Liss Road

Liss Road

Youngs Cr

Joseph St

Lara Lane

Park Lane

Cessna Way

River Road

Thomson Rd

Camplin Cl

Kenneth CrKendale Dr Capri Road

Forbes Bay

Hanssen Dr

Zachary Dr

Neltner Dr

Byle Drive

Parish Bay

Hay Avenue

Jorheim Dr

Martin St

River Road

Thomson Rd

Zachary Dr

Highland Dr

Main Street

Main Street

Main Street

Miles Place

Stolar Lane

Fergowin Rd

Arthur Road

Sunset Cove

Davidson Rd

Matrona Bay

Parkview Pl

Rebecca Dr.

Kelsey Trail

Mitchell Bay

Partridge Dr

Hazel Avenue

Mitchell Bay

Mitchell Bay

Red River Pl

Antonina Dr. Parkton Place

Air Line Road

Walter Street

Rose Crescent

Jorheim Drive

George Street

Prairie Place Davidson Road

Neltner Drive

McLennan Road

McLennan Road

Parkview Road

Parkton Place

Larter Avenue

Highland Drive

Highland Drive

Gusnowski Road

Gusnowski Road

Oakfield Drive

Settlers Trail

Goldstone Road

Overwater Road

Overwater Road

McPhillips Road

South Gate Road

St Andrews Road

Industrial Road

St Andrews Road

Larter Crescent

Deer Rapids Drive

Schreyer Crescent

Captain Kennedy Road

Parkdale

Road

Parkdale

Road

Neltner Drive

Kimberly Place

Red

R

iv

er

Airport Drive

Aviation Boulevard

Helicopter Drive

Lagoon

Closed Runway

Drainage Ditch

Proposed Runway Extension

UV^8

UV^410

UV^8

UV^27^ UV^204

UV^230

UV^238

UV^9

Legend

St. Andrews Airport St. Andrews Airport Study Area

Proposed Infrastructure

Future Winnipeg - Selkirk Corridor

Transportation

Provincial Trunk Highway Provincial Road

Figure 1: Study Area

0 250 Metre s 500 1,00 0

St. Andrews Airport Area Secondary Plan 4

1.3 Regulatory Framework

Section 63 of The Planning Act states that, “secondary plans must be consistent with the development plan”. Within the SDPA Development Plan, the St. Andrews Airport Area includes three land use designations, including “Business Park”, “Resource & Agriculture” and “Agriculture Restricted”. The Development Plan establishes a broad planning framework for the district and outlines policies for each of the designated areas. However, the Development Plan directs that more detailed secondary plans be prepared for each designation, as is the role of this particular planning document.

In accordance with The Planning Act , the Selkirk and District Planning Area Board (SDPAB) guides land use planning within their jurisdiction. The SDPAB is responsible for the adoption, administration, and enforcement of the development plan bylaw. The member municipalities are responsible for the adoption and implementation of the secondary plans and zoning bylaws within their jurisdiction.

Figure 2 illustrates the hierarchy of planning policy, regulations and implementation for the study area.

Figure 2 : Planning Framework

St. Andrews Airport Area Secondary Plan 6

design, site design standards and building standards, be used to promote economic development, and protect heritage or sensitive resources.

The St. Andrews Airport Area Secondary Plan shall be reviewed as needed. However, a review should be conducted in no less than five year increments. The review process may be harmonized to coincide with, or be incorporated into, the legislative reviews of the SDPA’s Development Plan review.

1.3.2.2 Zoning Bylaw*

A zoning bylaw is the principal regulatory tool to control land use. It establishes various land use districts, determines both permitted and conditional uses, and prescribes relevant development standards and requirements that are applicable in each land use district. The Development Plan and secondary plans are used as guides in preparing or amending the Zoning Bylaw.

1.3.2.3 Subdivision

The Planning Act contains detailed provisions and regulations governing the form and approval of subdivision applications. Part 8 of The Planning Act states that, “a subdivision of land shall not be approved unless the Council of the municipality in which the land proposed for subdivision is located, has by resolution given its approval, with or without conditions”. A subdivision plan will only be approved if it complies with the objectives and policies of the Development Plan and all other relevant bylaws. The SDPAB has subdivision approving authority.

1.3.2.4 Building Bylaws*

Land development and land use proposals for individual building projects are subject to the provisions of other municipal bylaws, such as building bylaws, lot grading bylaws, building safety and property standards bylaws, licensing bylaws and the Manitoba Building Code. These bylaws and regulations not only complement the Zoning Bylaw, but set out the terms, conditions, and procedures upon which building permits may be issued. Through the building bylaws, Council may establish the minimum standards of construction, maintenance, and occupancy which new and renovated buildings must meet in order to protect the safety and health of the public. The standards in these bylaws and regulations can also guide the physical appearance and environmental quality of development.

1.3.2.5 National Building Code

The St. Andrews Airport administration reviews building applications on the St. Andrews Airport lands in the context of the National Building Code to ensure facilities are constructed with high standards.

St. Andrews Airport Area Secondary Plan 7

1.3.2.6 Capital Expenditures

The capital expenditure program is among the most crucial considerations for giving effect to the programs and policies outlined in the Secondary Plan. Allocation of funds under this program for improvement, expansion, or initiation of capital works establishes the community’s commitment to a prioritized program of development. Once the Secondary Plan has been adopted, the R.M. of St. Andrews’ subsequent capital expenditure programs shall be consistent with the provisions of the Plan.

1.3.2.7 Development Agreements

Section 150 of The Planning Act provides the Municipality with the opportunity to implement a development agreement as a condition of amending a zoning bylaw, making a variance order, or approving a conditional use. Section 150 of The Planning Act identifies the following areas that may be addressed within a development agreement:

a) Use of land and any existing or proposed building.

b) Timing of construction of any proposed building.

c) Siting and design, including exterior materials, of any proposed building.

d) Provision of parking.

e) Landscaping, the provision of open space or the grading of land and fencing.

f) Construction or maintenance — at the owner's expense or partly at the owner's expense — of works, including but not limited to, sewer and water, waste removal, drainage, public roads, connecting streets, street lighting, sidewalks, traffic control, access and connections to existing services.

g) Payment of a sum of money to the planning district or municipality in lieu of the requirement under clause (f) to be used for any of the purposes referred to in that clause.

h) Dedication of land or payment of money in lieu thereof.

1.3.2.8 Land Acquisition

Section 66 of The Planning Act states that, “a municipality may acquire land by gift, purchase or expropriation (under The Expropriation Act ) in order to implement any part of a development plan bylaw or secondary plan bylaw. Moreover, the land may be sold, leased or otherwise disposed of by the district or municipality if it is no longer required”.

St. Andrews Airport Area Secondary Plan 9

remains the second busiest airport in Manitoba, accounting for approximately 22 percent of all reported aircraft movements within the province.

St. Andrews Airport has a variety of land uses on site. Businesses located directly on airport lands are tenants of the airport and the majority of businesses provide airportrelated services. A few of these services include:

Two scheduled air carriers.

Two fixedwing pilot training units.

Two helicopter charter operators.

A helicopter pilot training school.

Commercial hangar space.

Aircraft rentals.

Aircraft maintenance repair.

Aircraft fuel cap and tank manufacturing.

There are a few nonaviation related uses located on the airport lands, including: driver vehicle training services, a crematorium and a general contractor establishment. There are students living in dormitories located on the airport lands at various times throughout the year. Medevac services are accommodated at the airport for Selkirk Mental Health Centre clients.

There are intentions to extend the existing runway southward. This will have an impact on future land uses, including setbacks, height and noise considerations. Future land uses that may be attracted here include a hotel and a warehouse for storing goods bound for northern Manitoban communities. The extended runway will result in larger aircraft landing here, which may be louder than smaller aircraft. The extended runway will enable carriers to haul in more goods and people which will have a direct spinoff for additional services and warehousing.

The St. Andrews Industrial Park is located adjacent to the airport lands and constitutes another significant portion of the study area. The Industrial Park provides for a limited range of low impact industrial uses dominantly within enclosed buildings and accessory outside storage. There are several different businesses located here, including: trucking outfits; general contractors; recycled auto parts; a recreation vehicle manufacturer; amusement rides for carnival midways; and a storage building for the Western Canadian Aviation Museum. These are compatible uses as they do not put undue pressures on municipal services such as wastewater or water systems.

St. Andrews Airport Area Secondary Plan 10

The airport leases approximately 800 acres of the study area for agricultural purposes with only 500 acres cultivated and cropped regularly. Although this land is zoned Agricultural, there are specific crop restrictions and site management guidelines included within the current lease agreement. These regulations help to control the types of crops grown here and recommend methods for managing the site due to bird and wildlife management criteria for areas surrounding airports.

There are only a few singlefamily residences within the study area, with the majority located along Parkdale Road and St. Andrews Road.

St. Andrews Airport and associated industries are significant employers for the District and economic generators for the R.M. of St. Andrews. Protecting the airport from incompatible land uses is a priority.

2.0 COMMUNITY PLANNING PROCESS

The St. Andrews Airport Area Secondary Plan process began with the formation of a Steering Committee. The Steering Committee consisted of seven community members (landowners, business owners, etc.), the Reeve of the R.M. of St. Andrews, four area councillors, two representatives from St. Andrews Airport Inc., and two representatives from the SDPAB.

Community members had various opportunities to provide input throughout the development of the Secondary Plan. The following list outlines the stakeholder engagement activities, including:

An online survey.

Community conversations (informally conducted interviews with community members, landowners, and business owners).

A community workshop.

Meetings and discussions with provincial departments and agencies (Provincial Planning Services, Manitoba Local Government, Manitoba Infrastructure and Transportation, Manitoba Agriculture, Food and Rural Initiatives and Transportation Canada).

An open house.

St. Andrews Airport Area Secondary Plan 12

Commercial and Industrial

Local businesses provide an opportunity to work close to home.

Future opportunities to expand upon existing commercial and industrial uses.

Need for an increase in the number and variety of local services such as a restaurant, convenience store and gas station.

Services

Opportunity to warehouse goods that are bound for northern communities at the airport.

Opportunity to provide medical services (i.e., dialysis treatment, clinic, pharmacy, etc.) at the airport for residents from northern communities travelling to and from Winnipeg for more intensive medical services.

Opportunity to develop a hotel at the airport.

Residential

Residents enjoy living in the area, valuing their close proximity to the airport, availability of large lots and the quiet, peaceful atmosphere.

If future residential development is to occur on St. Andrews Airport lands, it should only be for those that operate aircraft.

Building Design and Landscaping Standards

Building design, landscaping and parking area standards should be established.

Sustainability

Passivesolar building design, recycled building materials, energyefficient heating and cooling systems, water conservation and surface water retention areas should be encouraged.

3.0 ST. ANDREWS AIRPORT AREA SECONDARY PLAN

The Secondary Plan is a valuable tool to help guide development decisions. Once a secondary plan is adopted, all proposed developments must conform to the applicable provisions and be used to help guide provisions in the Zoning Bylaw. A Secondary Plan enables residents and Council to guide the direction of development, ultimately creating a more sustainable, vibrant, aesthetically pleasing and economically sound community.

St. Andrews Airport Area Secondary Plan 13

As part of the Bylaw, Map 1 – Land Use Plan identifies land use designations that apply to the study area and should be reviewed in conjunction with the applicable policies.

3.1 General Planning and Sustainability

The overall goal of the St. Andrews Airport Area Secondary Plan is to establish, maintain, and develop land uses that are compatible with the St. Andrews Airport. The Plan promotes the area as a business centre that encourages green building practices, the incorporation of alternative energy sources, and celebrates thoughtful built form and landscaping design. Creating a sustainable community is vital to the longterm success of the area. This document endeavors to address the current needs of the area while planning to meet the needs of future generations of residents, landowners, business owners, and developers.

3.1.1 Objectives

The objectives of the St. Andrews Airport Area Secondary Plan are as follows:

1. To provide for potential future expansion of the airport.
2. To encourage future commercial and industrial development that is compatible with the airport.
3. To promote the area as a business centre that is exemplary in green building design, energy and water conservation, waste reduction and environmentally conscious landscaping practice.
4. To establish improved development and design standards for commercial and industrial development.
5. To plan for a safe and efficient transportation network that will provide for future access into the area.
6. To promote the development of walking and biking pathways.
7. To reduce conflict between neighboring land uses through height and noise provisions, adequate buffering and separation distances.
8. To restrict any land use that is incompatible with an airport.

St. Andrews Airport Area Secondary Plan 15

Quarries

Incinerators

Cement plants

Sawmills (slash and sawdust burners)

Refineries

6. Residential uses shall not be allowed to locate in areas that are not designated for residential or agricultural uses. Existing residential uses in commercial and industrial areas shall be deemed nonconforming; allowed to continue, but discouraged from expanding.
7. Accessory residential to industrial uses may be considered as a conditional use.
8. Development shall be compatible with its surroundings and conflicts will be prevented and/or minimalized.
9. The SDPA Zoning Bylaw should be amended to reflect the policies included within the Secondary Plan.
10. The Secondary Plan shall be reviewed in conjunction with the SDPA Development Plan review.

3.2 The Study Area

The Secondary Plan study area has been divided into two distinct areas.

Area South of the Airport.

Area North of the Airport.

The airport is federally regulated and outside the parameters of the Secondary Plan Bylaw. However, this Bylaw has been created with direct input from St. Andrews Airport personnel in order to ensure that the land uses proposed are considered in terms of the impact of development on the area as a whole.

The objectives and policies providing direction for the abovenoted areas are outlined in the following sections.

St. Andrews Airport Area Secondary Plan 16

3.3 Area South of the Airport

The area south of the airport includes the St. Andrews Industrial Park, vacant lands designated Business Park, and lands designated Resource and Agriculture in the Development Plan ( Map 1

- Land Use Plan ).

3.3.1 Commercial and Industrial

3.3.1.1 Introduction

The St. Andrews Industrial Park consists of various commercial and industrial uses, including: office commercial, salvage yard, manufacturing, warehousing and outdoor storage areas. These uses may continue to operate, but if redevelopment (including expansion, reconstruction or any improvements/changes to the property and/or building) is required, the new design standards outlined in this Plan will apply.

Commercial and industrial businesses play an integral part in the economic sustainability of the R.M. of St. Andrews and the SDPA. The close proximity between the St. Andrews Industrial Park and future nearby Business Park lands will help to create a central economic and employment node within the R.M.

It is expected that commercial and industrial uses will be developed to capacity in the area designated Business Park area within the next five to ten years. The lands designated Resource and Agriculture will not be considered for commercial/industrial use until the adjacent Business Park lands have been fully developed. The Development Plan and Secondary Plan will need to be amended before such uses will be allowed. Residences located south of Parkdale Road will be allowed to continue, but expansions or new dwellings shall not be permitted.

3.3.1.2 Objectives

1. Identify lands for a variety of commercial and industrial uses that would be compatible within a Business Park designation.
2. Direct all airportrelated commercial and industrial uses to lands located within the airport boundaries.
3. Ensure commercial and industrial uses are directed to the St. Andrews Industrial Park or lands designated for future Business Park use.
4. Encourage area businesses to be economic generators for the R.M. of St. Andrews and provide employment opportunities for nearby residents.