Development Levy Bylaw No. 1/2014
Yorkton, Saskatchewan
· adopted 2014-02-10
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CITY OF YORKTON
BYLAW NO. 1/2014
Disclaimer:
This information has been provided solely for
research convenience. Official bylaws are
available from the Office of the City Clerk and
must be consulted for purposes of interpretation
and application of the law.
Bylaw No. 1/2014 - Establishment of a development charge levy for the development or redevelopment of
lands within the City of Yorkton
Page 1 of 7
CITY OF YORKTON
SASKATCHEWAN
BYLAW NO. 1/2014
A BYLAW OF THE CITY OF YORKTON IN THE PROVINCE OF SASKATCHEWAN
TO ESTABLISH A DEVELOPMENT LEVY FOR LANDS THAT ARE TO BE
DEVELOPED OR REDEVELOPED WITHIN THE CITY OF YORKTON.
WHEREAS, Section 169 of The Planning and Development Act, 2007, Chapter P-13.2 (the
"Act") provides that the Council of the municipality may pass a bylaw establishing a
Development Levy;
WHEREAS, certain lands within the City of Yorkton are proposed for future development;
WHEREAS, Council for the City of Yorkton gave notice by advertising in a local weekly
newspaper on January 15, 22 and 29, 2014, and February 5, 2014 and a Public Hearing was held
on February 10, 2014, in regards to the proposed Bylaw, in accordance with the public
participation requirements contained in Section 207 of the Act;
WHEREAS, the Council for the City of Yorkton deems it desirable to establish a Development
Levy for the purposes of recovering all or a part of the capital costs of providing services and
facilities associated with a proposed development, directly or indirectly, in regards to: sewage,
water, and drainage works; roadways and related infrastructure; parks; and recreational facilities;
WHEREAS, the Council has received a study or studies, regarding the estimated capital costs of
providing municipal servicing and recreational requirements, which sets out a fair and equitable
calculation of the development levies in accordance with the Act,
WHEREAS, the Council has considered the future land use patterns and development and
phasing of public works to help determine a fair and equitable calculation of the development
levies in accordance with the Act; and
WHEREAS, the Council wishes to enact a bylaw: to impose and provide for the payment of
development levies; to authorize agreements to be entered into in respect of payment of
development levies; to set out the conditions upon which the levy will be applied to specify land
uses, classes of development, zoning districts or defined areas; and to indicate how the amount of
the levy was determined.
NOW THEREFORE, the Council of the City of Yorkton, duly assembled, enacts as follows:
1. SHORT TITLE
This bylaw may be cited as the "Development Levy Bylaw."
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2. PURPOSE AND INTENT
This bylaw is intended to:
a) Impose and provide for the payment of development levies;
b) Provide consistency between off-site development levies and subdivision servicing fees,
where appropriate;
c) Authorize agreements to be entered into in respect of payment of development levies;
d) Set out the conditions upon which the levy will be applied to specify land uses, classes of
development, zoning districts or defined areas; and
e) Indicate how the amount of the levy was determined.
3. DEFINITIONS
In this bylaw:
a) "Act" shall mean The Planning and Development Act, 2007, Chapter P-13.2 and any
amendments thereto;
b) "Capital Costs" means the municipality's estimated cost of providing, altering,
expanding or upgrading the following services and facilities associated, directly or
indirectly, with a Proposed Development:
i) Sewage, water or drainage works;
ii) Roadways and related infrastructure;
iii) Parks;
iv) Recreational facilities.
c) "Development" means the carrying out of any building, engineering, mining or other
operations in, on or over land or the making of any material change in the use or intensity
of the use of any building or land;
d) "Development Charge" means servicing fees and/or development levies as defined
within the Act.
e) "Development Lands" means those lands (or any part thereof) within the City of
Yorkton, where no previous servicing agreement has been entered into for the specific
proposed development and, in the opinion of Council, the City of Yorkton will incur
additional capital costs as a result of the proposed development;
f) "Development Levy" means the levy imposed and created by this bylaw pursuant to the
Act;
g) "Development Levy Agreement" has the meaning ascribed to this term by the Act
within Section 171.
h) "Director of Planning & Engineering" shall mean a person appointed by the Municipality
as the Director of Planning & Engineering;
i) "Municipality" means the City of Yorkton;
j) "Proposed Development" means a permitted or discretionary use within the City of
Yorkton Zoning Bylaw, for which a person or corporation has made an application for a
development permit;
k) "Servicing Agreement" has the meaning ascribed to this term by the Act within Section
172;
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4. ADMINISTRATION AND ENFORCEMENT
Council hereby delegates to the Director of Planning & Engineering, or designate, the duty and
authority to enforce and administer this bylaw, including administering the Development Levy,
Development Levy Agreements and Servicing Agreements. Only Council has the Authority to
enter into a Development Levy Agreement.
5. APPLICATION
a) This bylaw applies to Development Lands that benefit or will benefit from municipal
services installed or to be installed by or on behalf of the Municipality. The
Development Levy imposed by this bylaw is intended to recover all or a part of the
Capital Costs incurred by the Municipality as a result of a Proposed Development, as
illustrated and set out in Schedule "B" attached to and forming part of this bylaw.
b) Pursuant to Section 169(3), the Development Levy will only be applied if: the specific
proposed development was not previously subject to a servicing agreement; and, in the
opinion of Council, additional capital costs will be incurred by the Municipality.
c) A Development Levy will be assessed on all Developable Lands within the Municipality
except land designated as:
i) Environmental Reserve;
ii) Municipal Reserve; and
iii) Arterial Road Right-of-Way.
6. IMPOSITION OF LEVY
a) There is hereby imposed on the Development Lands a Development Levy in the amounts
set out in Schedule "A" attached to and forming part of this bylaw. Schedule "A" shall
be updated to reflect changes in infrastructure costs, as required.
b) The amount of the Development Levy that is imposed shall be based upon the levy in
place at the time when:
i) The Development Permit application is submitted to the Municipality and is deemed
complete; or
ii) The Subdivision Application is submitted to the City in the case where no
development permit is required.
c) Any revisions to Schedule "A" shall apply only to development permit applications
accepted by the Municipality after the date the revision is adopted.
d) The Municipality may reduce the Development Levy where full coverage of services
cannot be provided due to site limitations. Each of the capital works described in
Section 9 herein may be reduced or waived entirely according to the relative availability
(capacity) of the service items.
e) The Municipality may from time to time, by resolution, exempt or defer or partially
exempt or defer the imposition of a Development Levy where the Development Lands
are owned in whole or in part by a public body or bodies and where the Development of
the lands will be used in whole or in part for public service purposes.
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7. AUTHORITY TO ENTER INTO AGREEMENT
a) Any Development Levy Agreement and the obligation to pay the applicable
Development Levy shall be binding on successors in title to the original owner or owners,
regardless of whether a caveat in respect of the Development Levy Agreement is
registered by the Municipality against the Development Lands.
b) Nothing in this bylaw prevents the Municipality from imposing additional or new
development levies on any portion of the Development Lands where the Municipality has
not previously collected the Development Levy or entered into a Development Levy
Agreement or Servicing Agreement.
8. PAYMENT
a) The Development Levy provided in this bylaw shall be paid in the following manner:
i) Fifty Percent (50%) at the time a Servicing Agreement is signed by the developer for
subdivision of land;
ii) The remaining portion on a pro-rated basis as each lot is sold by the developer and
title transferred to a third party;
iii) One Hundred Percent (100%) prior to issuance of a Development Permit where land
was previously subdivided before the adoption of this bylaw but no Development
Levy imposed by the City; or
iv) In a fashion and timeline deemed appropriate by the Municipality within a
Development Levy Agreement as outlined by the Director of Finance where payment
is secured by letters of credit for all outstanding amounts prepared pursuant to Section
171 of the Act.
b) In the event that any Development Levy payment imposed by this bylaw payable under a
Development Levy Agreement is not paid at the time or times specified within the
Agreement and without limiting the remedies of the Municipality, the Municipality may
issue a stop order prohibiting further development on the Development Lands.
9. PURPOSE AND USE OF THE LEVY
The Development Levy is intended to reimburse the Municipality for the capital costs
associated with the construction, altering, expanding or upgrading of the following:
a) Sewage, water or drainage works;
b) Roadways and related infrastructure;
c) Parks; and/or
d) Recreational facilities
associated directly or indirectly with the proposed development. The Development Levy
may be utilized to pay a debt incurred by the municipality as a result of expenditure listed
above or to reimburse an owner described in clause 173(d) of the Act.
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10. CALCULATION OF LEVY
The Development Levy adopted in this bylaw was determined on the basis set out in
Schedule "B" annexed hereto and forming part of this bylaw.
11. SEVERABILITY
In the event that any provision of this bylaw is found to be null or void or contrary to law by
any court of competent jurisdiction, then such provision shall be severed from this bylaw and
the remainder of this bylaw shall continue to be of full force and effect.
12. THAT any previous Development Levy Bylaw or policy and all amendments thereto, are
hereby repealed.
13. ENACTMENT
This bylaw shall take effect and come into force upon the date of third and final reading.
MAYOR
CITY CLERK
Read a first time this 13th day of January, A.D., 2014.
Read a second time this 10th day of February, A.D., 2014.
Read a third time this 10th day of February, A.D., 2014.
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SCHEDULE A to Bylaw No. 1/2014
Development Charge Rate Table (Land Use Specific)
Land Use
Type
Roadway and
Related
Infrastructure
($/hectare)
Water System
($/hectare)
Sanitary
System
($/hectare)
Storm System
($/hectare)
Recreation
($/hectare)
Total
Development
Charge
($/hectare)
Residential
14,414
22,112
17,218
4,793
29,850
88,390
Commercial
106,792
26,535
29,517
8,628
-
171,474
Industrial
107,355
26,535
29,517
6,710
-
170,119
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Bylaw No. 1/2014 - Establishment of a development charge levy for the development or redevelopment of
lands within the City of Yorkton
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SCHEDULE B to Bylaw No. 1/2014
Development Charge Bylaw Background Report
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REPORT
City of Yorkton
Development Charge
Background Report
December 2013
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CONFIDENTIALITY AND © COPYRIGHT
This document is for the sole use of the addressee and Associated Engineering (Sask.) Ltd. The document contains proprietary and
confidential information that shall not be reproduced in any manner or disclosed to or discussed with any other parties without the express
written permission of Associated Engineering (Sask.) Ltd. Information in this document is to be considered the intellectual property of
Associated Engineering (Sask.) Ltd. in accordance with Canadian copyright law.
This report was prepared by Associated Engineering (Sask.) Ltd. for the account of City of Yorkton. The material in it reflects Associated
Engineering (Sask.) Ltd.'s best judgement, in the light of the information available to it, at the time of preparation. Any use which a third party
makes of this report, or any reliance on or decisions to be made based on it, are the responsibility of such third parties. Associated Engineering
(Sask.) Ltd. accepts no responsibility for damages, if any, suffered by any third party as a result of decisions made or actions based on this
report.
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Executive Summary
Yorkton has experienced a significant spike in its growth over the past five year period resulting from a
strong commodity market for agricultural, mineral and energy resources and products. Forecasts for the
Saskatchewan economy continue to be positive and Yorkton is well positioned both geographically and
within the international market expansion sectors to continue to attract new investment in the City.
Unfortunately, infrastructure often lags behind economic growth creating local inefficiencies and
unnecessary hindrances counteracting the benefits of this growth by discouraging private investment and
potentially increasing public financial obligations due to a lack of community preparedness.
The City currently levies $39,680.00 per hectare of net development area to expand infrastructure required
to support community growth. The methodology presented in this report breaks down the process into
logical steps intended to equip the City with the necessary tools to update and maintain development
charges which equitably assign a proportionate cost of community growth to developers.
Development charges include levies associated with the development or intensification of a use on an
existing parcel or fees charged to the developer by the municipality within a servicing agreement in
response to a proposed subdivision of land. The City requires a bylaw to assess development charges
within the community. The Planning and Development Act, 2007 (the Act) requires a municipality to
establish these charges based on a study or studies of the costs of municipal servicing and recreational
requirements as they relate to the established direction for future land use and development patterns and
the phasing of public works. As an approving authority, the Yorkton City Council does not require
ministerial approval to implement a development charge.
The assumptions and recommendations contained within this report are based upon the City's projected
growth as identified in an independent population growth study and the City's projected growth plan as
identified in its new Official Community Plan (OCP). The Future Growth Needs Analysis Report prepared
in support of the new OCP targets population growth in Yorkton between 2.21% and 2.75% annually over
the next twenty five year period. Correspondingly, the City's Future Land Use Maps identifies the spatial
distribution of this anticipated growth. It is projected that over the next twenty five years, an additional 335
hectares of land will need to be serviced to accommodate future residential growth, an additional 253
hectares will be needed for commercial development and an estimated 106 additional hectares of serviced
land will be needed to host the expansion of industrial development within the community.
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Development Charge
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The capital infrastructure associated within this forecasted growth is summarized as follows:
Table ES -1-1
Capital Project Forecast
Capital Infrastructure
Total Capital Cost ($)
Total Recoverable
from Development
Charges ($)
Municipal
Responsibility ($)
Road and Related
Infrastructure
47,982,500
43,227,000
4,755,500
Water System
18,950,000
16,934,000
2,016,000
Sanitary System
16,365,000
16,365,000
Nil
Storm System
36,000,000
4,500,000
31,500,000
Recreation
10,000,000
10,000,000
Nil
Total
129,297,500
91,026,000
38,271,500
There are many ways in which communities may calculate and apply development charges. The preferred
method for any community generally depends upon the community's administrative capacity to update and
implement the charge and the founding principles used in its creation. There are two methods widely
employed within Saskatchewan communities which include Land Use Specific Charges and Uniform
Development Charges.
This report provides calculations using both methods as a means of providing a basis for comparison. Land
Use Specific Charge reflects the variable impact on, and demand for, infrastructure by the three main land
uses present within the City. Although this method adds complexity to the calculation and the
administration and maintenance of the development charge, it is more defendable within the development
community since the charge applied to each type of land use is tailored to its perceived and differential
benefit.
Many smaller communities utilize a Uniform Development Charge which distributes a community's growth
related costs equally regardless of the type of land use. Uniform charges are generally easier to administer
and maintain as the process is consistent with uniform tax and utility rates regularly assessed by the
community; but tend to be more contentious within the development community as they are not seen to
accurately reflect a specific industry's impact on municipal infrastructure.
The development charge calculations in this report are represented on a cost per hectare basis. For the
purpose of calculating residential development equivalencies, a medium average density was applied. The
following tables summarize the proposed development charge rates using the two methods described
above. Details of the calculations are represented in Section 2 of the report.
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Table ES -1-2
Land Use Specific Development Charge Summary
Land Use
Type
Roadway and
Related
Infrastructure
($/hectare)
Water
System
($/hectare)
Sanitary
System
($/hectare)
Storm
System
($/hectare)
Recreation
($/hectare)
Total
Development
Charge
($/hectare)
Residential
14,414
22,112
17,218
4,793
29,850
88,390
Commercial
106,792
26,535
29,517
8,628
-
171,474
Industrial
107,355
26,535
29,517
6,710
-
170,119
Table ES -1-3
Uniform Development Charge Summary
Capital Infrastructure
Total Capital
Cost ($)
Total Recoverable
from Development
Charges ($)
Municipal
Responsibility
($)
Uniform
Development
Charge
($/hectare)
Road and Related
Infrastructure
47,982,500
43,227,000
4,755,500
62,287
Water System
18,950,000
16,934,000
2,016,000
24,401
Sanitary System
16,365,000
16,365,000
Nil
23,581
Storm System
36,000,000
4,500,000
31,500,000
6,484
Recreation
10,000,000
10,000,000
0.00
14,409
Total
129,297,500
91,026,000
38,271,500
131,161
Projected Growth Area
(ha)
694
Based upon the City's current flat rate charge of $39,680.00 per hectare, the development charge identified
in both of the tables above represents a significant increase which can either hinder or incent development
in a community. The City's capital project forecast identifies several key sanitary system projects which
are scheduled to be initiated in the next five years to which an immediate funding source is needed. Other
capital projects are scheduled within the longer term, providing more time to acquire the necessary financial
resources in advance of construction.
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Development Charge Calculation Options
The following options regarding the calculation of the development charge are presented for the City's
consideration:
Option 1: The City continues to utilize a uniform development charge rate re-valued at $131,161 per
hectare to be applied equally to all new developments and subdivisions regardless of the anticipated land
uses being hosted within this new development or subdivision.
Option 2: The City transitions to the following land use specific charges to recognize the variable impact
on and benefit derived by each land use classification on capital infrastructure and facilities:
Residential
$ 88,390
Commercial
$ 171,474
Industrial
$ 170,119
The land use specific charges are based upon industry standard measurements of equivalency used to
measure the relative impact of different forms of development on municipal infrastructure. The residential
charge is significantly lower than the commercial and industrial charges due to the application of lower
equivalency factors per hectare including forecasted vehicle trips, water consumption and waste water
production reflecting the lower overall impact of residential development on municipal facilities and systems.
Development Charge Implementation Options
The following options concerning the implementation of the development charge are presented for the
City's consideration:
Option 1:
The new development charge rate is applied at its full value from the date of bylaw
approval. The City prefers that the 50% of the calculated development charges become due upon
execution of the servicing or development agreement, with the remaining 50% of the charge to be paid
incrementally by the developer as serviced properties are sold, prior to site development.
Option 2: The City considers a multi-year phased implementation of the development charge rate to meet
short term municipal capital funding requirements while providing the development community with
appropriate advance notice to prevent a significant decrease in private investment within the City. The time
period and phased amount are both discretionary decisions and should be established based upon
consideration of the long term interests of the City and the anticipated short term impacts of an expanded
development charge on the demand for development within the community. A similar implementation
strategy would apply as identified in Option 1.
RECOMMENDATIONS
1. The City prepares a detailed financial plan to forecast and reconcile any divergences between the timing
of capital projects and the development charge accounts.
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2. The City reviews and updates the capital project list and the development charge calculations every five
years to parallel the City's capital budgeting cycle or where more accurate project costs are established for
existing projects.
3. The City considers the adoption of a policy which would require a developer who is proposing
development in advance of a budgeted capital infrastructure project to take sole responsibility for funding
the construction of the offsite capital infrastructure necessary to support the premature development. This
front end investment by the developer would then be repaid by the City at the time when the infrastructure
was originally budgeted to be constructed within the capital plan.
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Table of Contents
SECTION
PAGE NO.
Executive Summary
i
Development Charge Calculation Options
iv
Development Charge Implementation Options
iv
Recommendations
iv
Table of Contents
vi
List of Tables
vii
1
Introduction
1-1
1.1
Community Context
1-1
1.2
Study Scope
1-1
1.3
Development Charges Defined
1-2
2
Development Charge Calculation
2-1
2.1
Establishing a Planning Horizon for Community Growth
2-1
2.2
Population Growth Estimates and Spatial Distribution of Growth Areas
2-1
2.3
Capital Project Forecasting
2-2
2.4
Land Use Specific Development Charge Calculations
2-3
2.5
Summary of land Use Differentiated Development Charges
2-9
3
Development Charge Implementation
3-1
3.1
Land Use Specific Versus Uniform Development Charges
3-1
3.2
Development Charge Adjustments
3-2
3.3
Development Charge Assessment
3-2
3.4
Development Charge Credits and Exemptions
3-3
3.5
Municipal Financing, Budgeting and Inflation
3-3
3.6
Development Charge Phasing
3-4
Appendix A - The City of Yorkton Future Growth Needs Analysis
1
Appendix B - City of Yorkton Future Land Use Concept Map
1
Appendix C - Capital Project Worksheets
1
Appendix D - Provincial Development Charge Survey
1
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List of Tables
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List of Tables
PAGE NO.
Table ES -1-1 Capital Project Forecast
ii
Table ES -1-2 Land Use Specific Development Charge Summary
iii
Table ES -1-3 Uniform Development Charge Summary
iii
Table 2-1
Forecasted Capital Infrastructure Projects
2-2
Table 2-2
Equivalency Criteria
2-3
Table 2-3
Road and Related Infrastructure Development Charge Calculations
2-4
Table 2-4
Water System Development Charge Calculations
2-5
Table 2-5
Sanitary System Development Charge Calculations
2-6
Table 2-6
Storm Sewer System Development Charge Calculations
2-7
Table 2-7
Recreation Development Charge Calculations
2-8
Table 2-8
Summary of Land Use Differentiated Charge Calculations
2-9
Table 3-1
Uniform Development Charge
3-1
Table 3-2
Capital Project Forecast
3-4
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Introduction
1.1
COMMUNITY CONTEXT
The City of Yorkton is a major regional service centre for the east-central part of the province. Yorkton has
experienced a significant spike in its growth over the past five year period resulting from a strong
commodity market for agricultural, mineral and energy resources and products. Forecasts for the
Saskatchewan economy continue to be positive and Yorkton is well positioned both geographically and
within the international market expansion sectors to continue to attract new investment in the City.
Unfortunately, infrastructure often lags behind economic growth creating local inefficiencies and
unnecessary hindrances counteracting the benefits of this growth by discouraging private investment and
potentially increasing public financial obligations due to a lack of community preparedness.
It is intended that a new development charge be defined to replace the current Off-Site Services Reserve
Policy with a desire to strengthen the connection between capital projects and the offsite charges. The
current policy, adopted in 2003, levies $39,680 per hectare of net development area to expand
infrastructure required due to growth. Development charges and the means by which they are employed in
other cities in the province vary significantly from community to community. A table illustrating some of the
current rates in these other communities is appended to this document as Appendix "D". Preparing an
updated development charge which is defendable and reflects accurate capital cost projections is one step
in ensuring that the City is appropriately prepared to respond to this economic prosperity in an efficient and
fiscally responsible manner.
1.2
STUDY SCOPE
The City requires a bylaw to assess development charges within the community. The Planning and
Development Act, 2007 (the Act) requires a municipality to establish these charges based on a study or
studies of the costs of municipal servicing and recreational requirements as they relate to the established
direction for future land use and development patterns and the phasing of public works.
This study is intended to establish a methodology to be used by the City to calculate and assess a
development charge for new developments and subdivisions within Yorkton. The study involves a review
of the City's current offsite levy and the forecasted capital infrastructure projects required to support the
City's projected growth to determine if the current levy is sustainable.
The background study provides policy recommendations based upon industry best practice surveys and
engineering analysis determining the appropriate values for sewer, water and drainage works, roadways
and related infrastructure, parks and recreational facilities to inform the preparation of a bylaw for approval
by the municipal council.
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1.3
DEVELOPMENT CHARGES DEFINED
Development charges as referred to in this document refer to servicing fees and development levies as
defined within the Act. Sections 169 and 172 of the Act authorizes Council to impose a development
charge covering all or a part of the capital costs of providing, altering, expanding or upgrading:
sewage, water and drainage works
roadways and related infrastructure
parks
recreational facilities
Often infrastructure provides a benefit to more than one development and, consequently, the cost of
developing the infrastructure should be shared by all benefiting developments. The Act distinguishes
between infill development which involves the intensification of land use on an existing subdivided property
where the intensification is expected to trigger additional capital costs and Greenfield subdivision which
represents the subdivision and extension of new services to previously undeveloped lands by prescribing
two different but related recovery mechanisms. Development levies are typically applied to infill
development whereas servicing fees are generally employed in response to new property subdivisions.
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2
Development Charge Calculation
The preparation of a development charge is a multi-disciplinary task involving not only land use planning
and engineering but also incorporates economic analysis. The following summary steps are used in
calculating a development charge.
2.1
ESTABLISHING A PLANNING HORIZON FOR COMMUNITY GROWTH
The planning horizon represents the time period in which the forecasted growth is to occur. This time
period will impact not only population and employment growth projections but will also contribute to
determining the amount of serviced land which will be required and subject to the charge. The time period
chosen must represent a short enough horizon to be confident that population and other growth
assumptions are accurate while also providing sufficient time for the City to employ the appropriate
forethought and implement the directions provided in the Official Community Plan (OCP) to proactively
anticipate and respond to this growth.
The risk in not looking far enough ahead in the future is that Yorkton will not be able to respond in a timely
manner to economic expansion and development pressure arising from rapid economic growth in the region
and the province as a whole. The OCP is the principal document which forecasts both the planned rate of
growth and the geographical application of this growth and these are both fundamental components of this
charge. The proposed OCP provides for a twenty five year planning horizon. Given the strategic direction
provided by this document, it would make sense for the same time period to be applied to the development
charge calculation as well.
2.2
POPULATION GROWTH ESTIMATES AND SPATIAL DISTRIBUTION OF GROWTH AREAS
For the purpose of this document, two forms of growth forecasting are employed reflecting the full spectrum
of future land use demands.
a.
Population growth forecasts are necessary to predict the future demand for residential land and to
determine the required supply of serviced land needed to respond to this demand.
b.
Employment growth forecasts provide an estimate of the number of new business opportunities
expected within the planning horizon, enabling an estimation of the land base necessary to respond
to this forecasted demand.
In both cases there needs to be community validation for both of these parameters as they are essential for
calculating future land requirements and ultimately the development charge.
Crosby Hanna and Associates has recently prepared a Future Growth Needs Analysis Report as
background for a new OCP. A copy of this report is reproduced and attached to this report as Appendix
"A".
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This study acknowledges the positive impact of continued and growing international immigration to the City
combined with the spinoff effect from planned expansions in the local energy and mineral sector. The study
targets population growth in Yorkton between 2.21% and 2.75% annually over the next twenty five year
period.
According to the OCP, it is projected that over the next twenty five years, an additional 335 hectares of land
will need to be serviced to accommodate future residential growth, an additional 253 hectares will be
needed for commercial development and an estimated 106 additional hectares of serviced land will be
needed to host the expansion of industrial development within the community. The City's projected future
growth areas are attached to this report as Appendix "B".
2.3
CAPITAL PROJECT FORECASTING
Development charges represent the proportionate allocation of the cumulative costs of extending sanitary
sewer, water, storm sewer, road and recreational services to growth areas. Growth and development in
turn is classified on the City's Future Land Use Map as comprising residential, industrial and commercial
land uses.
The following table summarizes the estimated gross capital costs associated with extending services to the
projected growth areas over the next twenty five year period based upon collaborations with the City of
Yorkton staff and detailed in Appendix "C". Through consultations with city staff, a percentage of the
estimated capital expenditures associated with each infrastructure project were allocated to the
development charge based upon the anticipated benefit provided by the capital improvements to both
existing and future development. The portion of capital expenditure assigned as municipal responsibility is
expected to be recovered through a combination of utility rates and property taxes.
Table 2-1
Forecasted Capital Infrastructure Projects
Capital Infrastructure
Total Capital Cost ($)
Total Recoverable
from Development
Charges ($)
Municipal
Responsibility ($)
Road and Related
Infrastructure
47,982,500
43,227,000
4,755,500
Water System
18,950,000
16,934,000
2,016,000
Sanitary System
16,365,000
16,365,000
Nil
Storm System
36,000,000
4,500,000
31,500,000
Recreation
10,000,000
10,000,000
Nil
Total
129,297,500
91,026,000
38,271,500
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2.4
LAND USE SPECIFIC DEVELOPMENT CHARGE CALCULATIONS
Each of the land use classifications described in this report (residential, commercial and industrial) place
different demands and has a variable impact on infrastructure. In recognition of the City's commitment to
an equitable allocation of the capital infrastructure costs within the development charge, it is necessary to
establish a basis for comparing the varied impact and benefit for each land use classification. The following
criteria are generally used to reflect this varied impact as it applied to the calculation of a development
charge:
Table 2-2
Equivalency Criteria
Capital Infrastructure
Criteria
Road and Related Infrastructure
Average vehicle trips generated
Water System
Average water usage
Sanitary System
Average waste water production
Storm System
Site compaction and runoff coefficients
Recreation Facilities
New residential area
2.4.1
Road and Related Infrastructure
Data from the Institute of Transportation Engineers "Trip Generation Manual" was used to estimate the
number of daily one directional vehicle trips associated with each land use classification. This data, which
is commonly used in transportation modelling, estimates the following number of daily trips per hectare for
each classification as:
Residential
11.52 trips/ha
Commercial
85.35
trips/ha
Industrial
85.80
trips/ha
Based upon the future growth areas defined in the OCP, the following calculations are used to define the
development charges associated with capital roadway expenditures. According to the table below, a total
of 34,547.55 trip ends are expected within the new development areas. Based upon an estimated total
capital expenditure of $43,227,000 for forecasted roadway infrastructure allocated to new development
identified in Table 2-3, the estimated capital cost per vehicle trip is $1,251.23.
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Table 2-3
Road and Related Infrastructure Development Charge Calculations
Land Use Type
Projected Growth
Area1 (ha)
(A)
Vehicle Trip
Ends2 per Hectare
(B)
Total Equivalent
Trip Ends
(C) = A x B
Development
Charge per
gross hectare
($)
(D) = E x B
Residential
335
11.52
3,859.20
14,414
Commercial
253
85.35
21,593.55
106,793
Industrial
106
85.80
9,094.80
107,356
Totals
694
34,547.55
Total Recoverable
from Development
Charge3
$43,227,000
Capital Cost per
Vehicle Trip End (E)
$ 1,251.234
2.4.2
Water System
Average water consumption was used for the purposes of defining an equivalency between the three
classes of land use. It is generally accepted that each land use class has differing rates of water
consumption and as such each land use class will have a varied impact on potable water infrastructure.
Local engineering studies indicate that typical residential water consumption in Yorkton equates to
approximately 500 litres per person per day with non-residential uses consuming approximately 22,500
litres per hectare.
1 The anticipated serviced land required for each land use class to meet future development needs based upon the
Crosby Hanna & Associates Future Growth Needs Analysis.
2 A Vehicle Trip End is defined within the Transportation Engineer's "Trip Generation Manual" as a single direction
vehicle movement.
3 See Table 2-1.
4 This value is calculated by dividing the total capital expenditure by the total number of vehicle trip ends.
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Table 2-4
Water System Development Charge Calculations
Land Use Type
Projected Growth
Area5 (ha)
(A)
Equivalent
Consumption per
hectare6
(B)
Total
Consumption
Units (L/day)
(C) = A x B
Development
Charge per
gross hectare
($)
(D) = E x B
Residential
335
18750
6281250
22,113
Commercial
253
22500
5692500
26,535
Industrial
106
22500
2362500
26,535
Totals
694
14358750
Total Recoverable
from Development
Charge7
$ 16,934,000
$ per Consumption
Unit (Litre) (E)
$ 1.188
2.4.3
Sanitary Sewer System
Total capital sanitary infrastructure expenditures which are expected to be allocated exclusively to new
development through development charges were estimated based upon preliminary work completed on a
sanitary master plan for the City. In order to provide an equitable allocation of these future anticipated
costs between the three land use classifications, an equivalency factor related to the volumes of waste
water generated by the various land uses was utilized. The City estimates that typical residential waste
water generation in Yorkton equates to approximately 350 litres per person daily while similar to water
usage, commercial and industrial uses are estimated to generate approximately 22,500 litres of sewage per
hectare on a daily basis.
5 The anticipated serviced land required for each land use class to meet future development needs based upon the
Crosby Hanna & Associates Future Growth Needs Analysis.
6 Equivalent Consumption per hectare for residential uses was calculated based upon 2.5 persons per dwelling
multiplied a target density of approximately 15 dwellings per hectare as stated in the OCP, multiplied by an average
daily consumption of 500 litres per person per day. Commercial and industrial consumption is estimated to be 22,500
litres per hectare.
7 See Table 2-1.
8 This value is calculated by dividing the total capital expenditure by the total consumption units.
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Table 2-5
Sanitary System Development Charge Calculations
Land Use Type
Projected Growth
Area9 (ha)
(A)
Equivalent
Generation per
hectare10
(B)
Total Generation
Units (L/day)
(C) = A x B
Development
Charge per
gross hectare
($)
(D) = E x B
Residential
335
13125
4396875
17,219
Commercial
253
22500
5692500
29,518
Industrial
106
22500
2385000
29,518
Totals
694
12474375
Total Recoverable
from Development
Charge11
$ 16,365,000
$ per Generation
Unit (Litre) (E)
$ 1.3112
9 The anticipated serviced land required for each land use class to meet future development needs based upon the
Crosby Hanna & Associates Future Growth Needs Analysis.
10 Equivalent Generation per hectare for residential uses was calculated based upon 2.5 persons per dwelling multiplied
a target density of approximately 15 dwellings per hectare as stated in the OCP, multiplied by an average daily
generated waste water of 350 litres per person per day. Commercial and industrial generation is estimated to be
22,500 litres per hectare.
11 See Table 2-1.
12 This value is calculated by dividing the total capital expenditure by the total generation units.
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2.4.4
Storm Sewer System
Runoff coefficients are frequently employed by engineers to predict the amount of water which is shed from
a property expressed as a percentage of the total amount of precipitation. There is a direct correlation
between runoff coefficients and land use. Higher runoff coefficients associated with larger building mass
and more intensive commercial and industrial land uses generate greater runoff from a site which implies a
greater reliance on municipal storm water systems. The City estimates a total capital expenditure
exceeding $16 million over the next 25 years with 100% of this investment directly attributed to the City's
growth areas.
Table 2-6
Storm Sewer System Development Charge Calculations
Land Use Type
Projected
Growth
Area13 (ha)
(A)
Land Use
Runoff
Coefficient14
(B)
Total
Impervious
Hectares
(C) = A x B
Weighted
Average
Recoverable
($)
(D)
Development
Charge per
gross hectare
($)
(E) = D/A
Residential
335
50%
167.5
1,605,773.33
4,793
Commercial
253
90%
227.7
2,182,893.05
8,628
Industrial
106
70%
74.2
711,333.62
6,711
Totals
694
469.4
Total
Recoverable
from
Development
Charge 15
$ 4,500,000
13 The anticipated serviced land required for each land use class to meet future development needs based upon the
Crosby Hanna & Associates Future Growth Needs Analysis.
14 Runoff coefficients are an industry standard technique established through the application of the Rational Method for
estimating a design discharge from a small watershed.
15 See Table 2-1.
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2.4.5
Recreation
According to information provided by the City of Yorkton, it is expected that approximately $10,000,000.00
will be expended on the construction of new recreational infrastructure over the next 25 years. It is
expected that 100% of this future expenditure will benefit new development. Commercial and industrial
developments are anticipated to have negligible impact on or benefit derived from these facilities and as
such, 100 percent of the anticipated future expenditures are allocated to residential development. Based
upon this estimated capital expenditure and an estimated residential benefiting area of 335 hectares, the
gross hectare Development Charges are calculated as follows:
Table 2-7
Recreation Development Charge Calculations
Land Use Type
Projected Growth
Area16 (ha)
(A)
% Allocation
(B)
Development
Charge per
gross hectare
($)
(C) = D / A x B
Residential
335
100%
29,851
Commercial
253
0%
0.00
Industrial
106
0%
0.00
Totals
694
Total Recoverable
from Development
Charge17 (D)
$10,000,000
16 The anticipated serviced land required for each land use class to meet future development needs based upon the
Crosby Hanna & Associates Future Growth Needs Analysis.
17 See Table 2-1.
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2.5
SUMMARY OF LAND USE DIFFERENTIATED DEVELOPMENT CHARGES
The following table summarizes the calculated development charges for all of the forecasted capital
projects in the City based upon a differentiated rate for the three land use classifications.
Table 2-8
Summary of Land Use Differentiated Charge Calculations
Land Use
Type
Roadway and
Related
Infrastructure
($/hectare)
Water
System
($/hectare)
Sanitary
System
($/hectare)
Storm
System
($/hectare)
Recreation
($/hectare)
Total
Development
Charge
($/hectare)
Residential
14,414
22,113
17,219
4,793
29,851
88,390
Commercial
106,793
26,535
29,518
8,628
-
171,474
Industrial
107,356
26,535
29,518
6,711
-
170,119
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REPORT
3-1
3
Development Charge Implementation
3.1
LAND USE SPECIFIC VERSUS UNIFORM DEVELOPMENT CHARGES
There are many ways in which communities may calculate and apply development charges. The preferred
method for any community generally depends upon the community's administrative capacity to update and
implement the charge and the founding principles used in its creation. There are two methods widely
employed within Saskatchewan communities which include Land Use Specific Charges and Uniform
Development Charges.
This report employs the Land Use Specific Charge reflecting the variable impact on, and demand for,
infrastructure by the three main land uses present within the City. Although this method adds complexity to
the calculation and the administration and maintenance of the development charge, it is more defendable
within the development community since the charge applied to each type of land use is tailored to its
perceived benefit.
Many smaller communities utilize a Uniform Development Charge which distributes a community's growth
related costs equally regardless of the type of land use. Uniform charges are generally easier to administer
and maintain as the process is consistent with uniform tax and utility rates regularly assessed by the
community; but tend to be more contentious within the development community as they are not seen to
accurately reflect a specific industry's impact on municipal infrastructure. Using the data presented in Table
2-1, the following table illustrates the calculation of a Uniform Development Charge:
Table 3-1
Uniform Development Charge
Capital Infrastructure
Total Capital
Cost ($)
Total Recoverable
from Development
Charges ($)
Municipal
Responsibility
($)
Uniform
Development
Charge ($/hectare)
Road and Related
Infrastructure
47,982,500
43,227,000
4,755,500
62,287
Water System
18,950,000
16,934,000
2,016,000
24,401
Sanitary System
16,365,000
16,365,000
Nil
23,581
Storm System
36,000,000
4,500,000
31,500,000
6,484
Recreation
10,000,000
10,000,000
Nil
14,409
Total
129,297,500
91,026,000
38,271,500
131,161
Projected Growth Area
(ha)
694
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Based upon this method, a per hectare development charge of $131,161 would be applied to all new
development regardless of the type of land use. In this case, the Uniform Development Charge tends to
benefit non-residential and penalize residential development, potentially creating an unintended disincentive
for residential development.
3.2
DEVELOPMENT CHARGE ADJUSTMENTS
Communities are often successful in receiving grants or other forms of financial assistance (e.g.
federal/provincial funding, fundraising, private donor contributions, etc.) to offset the cost of growth-related
capital costs. It is appropriate that the gross servicing costs be reduced by the anticipated value of grants
and contributions to the extent that they are able to be used to fund growth-related costs. This is generally
acknowledged because the grants and other contributions are offsetting municipal costs of service, of which
the benefits accrue to all ultimate system users. Where conditional grants have been secured by the City
towards a specific project, the project cost should be reduced by the amount of the grant. Unconditional
grants, even though they may have been utilized by the City for financing a project, are not deducted from
the final project costs, as it can be rationalized that such funding could have been used for other projects.
For the purposes of this report, it is assumed that any grants or alternative forms of funding received for the
capital projects listed in Appendix "C" will be applied to reduce the gross project cost thus sharing the
benefit proportionately between new and existing developments.
3.3
DEVELOPMENT CHARGE ASSESSMENT
It is proposed by the City that 50% of the total calculated development charges will become due
immediately upon execution of the servicing or development agreement and that the balance of
development charges will be assessed incrementally as the serviced properties are sold, prior to site
development.
Net development area definitions will be applied in determining development charge obligations. Net
development area is defined as follows:
Gross Area - The area of lands to be developed in hectares that have not previously been subject
to a development charge.
Less: Any environmental reserves contained within the development area including
environmental reserves and environmental easements.
Less: Allowance for Municipal Reserves.
Less: Lands dedicated for public roadways.
Equals: Net Developable Area, which is the area subject to offsite levies.
Sections 171(3) and 172 (4) of The Planning and Development Act, 2007 prohibit the assessment of more
than one development levy per development, or the assessment of a servicing fee for work previously
addressed by a development levy unless the municipality will incur additional capital costs as a result of the
proposed subdivision. The consequences of this is that where a subdivision of a new parcel occurs and a
servicing agreement is executed to assess a servicing fee for the subdivision, a development levy may not
be assessed in the future on that property for any works previously undertaken or funded by the original
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3-3
servicing fee unless it can be shown that the intensification of the property development will result in the
municipality incurring additional capital costs as a result of the intensification.
3.4
DEVELOPMENT CHARGE CREDITS AND EXEMPTIONS
Development Charges will not be collected on lands where:
1. It can be shown or it is reasonable to assume that the land was previously connected to all
municipal services including water, sanitary sewer, and storm drainage services and road access;
or
2. There will be a reasonable opportunity to collect offsite levies in the future, upon subdivision and
further servicing of the land; or
3. The land remains completely un-serviced.
Where a new service is provided to an existing residence but it is not appropriate to assess a charge in its
entirety then an appropriate connection charge will be assessed to allow the service connection. The
connection charge will be evaluated based upon the equivalent value of the development charge
components for services provided, land area used by an equivalent residence on an urban lot and future
opportunities to collect the full charges. This occurs only where an existing, formerly un-serviced residence
is connected to City services where no planning, subdivision or zoning changes are contemplated.
The City may also consider providing a partial or full exemption where it is consistent with an adopted
economic development initiative as a means of further encouraging the establishment of a specific type of
new development, or density of development in strategic areas of the city. Such an exemption would be
funded within the broader city tax structure.
Situations often arise where a developer proposes development in advance of the planned construction of
the associated external infrastructure needed to support this new development creating a divergence
between the City's project budgeting and development charge fee funding. The City should consider
adopting a policy requiring a developer to be solely responsible for funding all of the external capital works
which would have otherwise been provided by the City where a development precedes its forecasted
servicing. This private expenditure would be considered a loan to the City to be credited against the
calculated development charge with the outstanding balance repaid by the City at a later date when the
capital work project was original intended to be completed based upon the City's capital project schedule.
3.5
MUNICIPAL FINANCING, BUDGETING AND INFLATION
There is likely to be an occasional disconnection between the timing of capital infrastructure projects and
development charge accounting, creating temporary funding shortfalls within the dedicated development
charge account, resulting in the potential need for the City to provide temporary financing for these projects.
A detailed financial plan forecasting and reconciling these anticipated divergences should be undertaken as
part of the City's regular five year capital works budgeting process.
Recognizing that this is a living document and that economics change over time, it is essential that the cost
estimates used to calculate the development levy/servicing fee be updated regularly to reflect annual
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inflation. It is also important to update these estimates as formal project tenders are received to ensure that
the most accurate data is employed. The levy rate calculations should be fully updated at least once every
five years to match the City's capital works budgeting cycle.
3.6
DEVELOPMENT CHARGE PHASING
Policies and processes can either hinder or incent development in a community. The estimated new
charge represents a significant increase from the current rate applied particularly within the commercial and
industrial sectors which may discourage private investment into commercial or industrial developments in
the City. The City needs to consider and weigh all of the positive and negative implications of the new rate
on new development within the community when considering an implementation policy. Given the
significant rate increase anticipated, it may be prudent to consider a phased adoption of the new rate over a
number of years to somewhat mitigate the potential sticker shock for the development community that could
accompany the adoption of the revised rate.
As illustrated in the table below, the City's capital project forecast identifies several key sanitary system
projects which are scheduled to be initiated in the next five years to which an immediate funding source is
needed. Other capital projects are scheduled within the longer term, providing more time to acquire the
necessary financial resources in advance of construction.
Table 3-2
Capital Project Forecast
Capital
Infrastructure
Capital Project Costs ($)
Short Term
2013 - 2020
Medium Term
2021-2030
Long Term
2031-2038
Road and Related
Infrastructure
7,180,000
19,524,500
16,522,500
Water System
4,704,000
5,230,000
7,000,000
Sanitary System
7,903,000
4,550,000
3,912,000
Storm System
1,500,000
Nil
3,000,000
Recreation
Nil
10,000,000
Nil
Total
21,287,000
39,304,500
30,434,500
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REPORT
A-1
Appendix A - The City of Yorkton Future Growth
Needs Analysis
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THE CITY OF YORKTON
FUTURE GROWTH NEEDS
ANALYSIS
2011 UPDATE
PREPARED FOR:
THE CITY OF YORKTON
PREPARED BY:
CROSBY HANNA & ASSOCIATES
LANDSCAPE ARCHITECTURE AND PLANNING
SASKATOON, SK
January 31, 2012
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TABLE OF CONTENTS
1.
INTRODUCTION ............................................................................................................................................. 1
2.
POPULATION ................................................................................................................................................. 3
2.1
HISTORICAL POPULATION TRENDS ........................................................................................................................ 3
2.2
POPULATION PROJECTIONS ................................................................................................................................. 5
3.
RESIDENTIAL .................................................................................................................................................. 8
3.1
LAND FORECAST AND METHODOLOGY ................................................................................................................... 8
4.
INDUSTRIAL AND COMMERCIAL .................................................................................................................. 10
4.1
LAND FORECAST AND METHODOLOGY ................................................................................................................. 10
4.2
INDUSTRIAL LAND FORECAST ............................................................................................................................. 11
4.3
COMMERCIAL LAND FORECAST .......................................................................................................................... 13
5.
CONCLUSION ............................................................................................................................................... 15
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1. INTRODUCTION
The purpose of this study is to review the need for additional development lands for the City of Yorkton,
taking into consideration among other things, the potential impact of mining development on the regional
economy. This study examines future land needs for residential, commercial and industrial development,
based on these and other economic trends as well as the City's population trends, land inventory and long
term future growth plans.
As an update to the 2009 City of Yorkton Future Growth Needs Analysis, the 2011 study has re-examined
population trends and projections using updated data from Saskatchewan Health. In addition to this,
population projections have been adjusted to account for changes in the economic climate of Yorkton and
the region. The two canola crushing plants - used as a basis for population growth in 2009, one located
in the City of Yorkton and one located adjacent to the City, are now staffed and operational and so
information regarding future employment growth and multipliers has been updated to include new
developments that are influencing the growth of Yorkton (i.e. expansion and development of new potash
mines in the region). The same methodology used in the 2009 report has been used in the 2011 report to
project population and calculate land need in the City based on these new variables. Other changes in the
report include an increase in the density used for residential land need, from 4 dwelling units per acre to 6
dwelling units per acre to reflect trends in urban development.
Based on the findings of this report, we respectfully submit that the recommendations made are necessary
for the City to continue to accommodate rapid grow in terms of both population and business
development. The future growth pattern recommended in 2011 is based on sound planning principles,
historical trends, and the projected land use requirements of the City. This report was developed with full
access to the City of Yorkton technical information such as engineering studies, land use information, and
cadastral data.
It is important to note that the following land needs analysis is been based on a 25 year planning horizon
as necessary services and amenities required and expected by residents living in Yorkton neighbourhoods,
as well as required infrastructure, must be planned and accounted for years before actual development
occurs. While following the City's future growth pattern as set out by its Future Land Use Map in the
City's Development Plan, the City has defined its growth pattern (and land requirements) years in
advance of actual development. This is a responsible course of action. As an example of a long term
planning horizon, the City of Saskatoon's most recent annexation accounted for 40 years growth for the
municipality. The City of Saskatoon also points out in their most recent Official Community Plan (2009)
that residential land being developed today in the Silverspring neighbourhood, was annexed in 1979,
based on a Community Planning Scheme adopted by City Council in 1966. Furthermore, the City of
Regina, in their most recent Industrial Growth Strategy (2007) projected industrial land on a 25 year time
horizon, detailing that bringing lands under the City's jurisdiction will enable the City to plan for an
efficient and comprehensive extension of municipal infrastructure and will allow the City to regulate
development in these areas to complement the long-term growth strategy.
Without a sufficient supply of land (residential, commercial and industrial) the City of Yorkton will not
be able to meet the demands created by economic growth in the region which is the main driver of
population growth. The City of Yorkton must have land readily available to meet the needs of an
expanding population as well as having the ability to offer and attract new, larger employers who may
needs large tracts of industrial or commercial land. The risk in not looking far enough ahead in the future
is that Yorkton will not be able to respond in a timely manner to economic expansion and development
pressure arising from rapid economic growth in the region.
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2
Using the same methodology as the 2009 report, historical growth, current land supply, employment
densities and a migration assumption suggest the following for the City of Yorkton:
The City will require an additional 523-850 acres for residential growth, an additional 395-626
acres for commercial growth, and an additional 28-259 acres for industrial growth.
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3
2. POPULATION
2.1
Historical Population Trends
Population trends for the City of Yorkton for the period of 2001 - 2011 are presented in Table 2-1.
Between 2001 and 2011, the City's population grew at an average annual rate of 0.89%. Over the past
five years (2006 to 2011), this trend increased to almost double the 10 year rate, to an average annual
growth rate of 1.65%.
TABLE 2-1: HISTORICAL POPULATION
CITY OF YORKTON (2001 - 2011)
Year
Population
% Change
2001
16,898
---
2002
17,032
0.79
2003
16,916
-0.68
2004
17,186
1.60
2005
17,261
0.44
2006
17,006
-1.48
2007
17,260
1.49
2008
17,603
1.99
2009
17,608
0.03
2010
19,588
11.2
2011
18,471
-5.7
Net Change
2001 - 2011
1,573
--
Average Annual
Change
2001 - 20011
--
0.89%
Net Change
2006 - 2011
1,465
--
Average Annual
Change
2006 - 2011
--
1.65%
SOURCE: Saskatchewan Ministry of Health Covered Population 2001 - 2011
According to the Saskatchewan Ministry of Health, the most recent health card renewal was in December
2011. Through the renewal process, the provincial health registry was updated and persons who cease to
be eligible for Saskatchewan health coverage were removed from the list of beneficiaries. Population
decreases have been observed following previous health card renewal years. The Covered Population
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4
figures have been closest to Statistics Canada population estimates in the years following a health card
renewal (i.e. 2003, 2006, 2009 and 2012). The next health card renewal will be in 2014. In light of this,
it is important to note the limitations of using Saskatchewan Health Covered Population Statistics, as
generally each year following a health card renewal a drop in the population count can usually be seen.
Historical trends used to project population for the City of Yorkton are based on the five year historical
trend (2006 - 2011).
Although Saskatchewan Health population numbers show a decline between 2010 to 2011, the drop is an
error. The drop in the population can be explained by an allocation error made by Saskatchewan Health
that caused many of its figures in 2010 to be inaccurate. A switchover was made to a new method of
trying to calculate them, however, where certain information wasn't in the record; it defaulted back to
some old information. The mistake was rectified in the 2011 numbers and thus, is why a decrease is
shown from 2010 to 2011. The CEO of Saskatchewan Health estimates that the correct figure for
Yorkton in 2010 would have been around the 18,000 mark, making the average annual growth from 2010
to 2011 around 2.5%.1
1 Chris Putnam, "Yorkton Population Numbers In", Yorkton This Week, January 18th, 2012.
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2.2
Population Projections
On the basis of past trends and present population size and structure, it was possible to develop four
projections for population change in the City of Yorkton for a 25 year planning time frame (i.e. 2011 -
2036) (See Table 2-2). Projection #1 contains a linear extrapolation of observed rates of change over the
last five years, using an average annual growth rate of 1.65%.
The second and third projections (Projections #2 & #3) were made using the assumption that migration
rates will increase over the next several years (over the five year historical trend). This assumption is
made to account for the following factors: a potential Agrium potash mine which will create 450 new jobs
and a potential BHP Billiton potash mine near Melville (two drill rigs are currently operating and a large
seismic survey is underway with an estimation of 500 direct jobs at the mine); and an expansion to
Mosaic's Esterhazy mine, resulting in 250 new jobs being created. In total, it has been estimated that a
total of 1,200 direct jobs will result from all three of these potash mines.
The U.S. Bureau of Economic Analysis2 lists employment multipliers by industry aggregation, showing a
range of mining multipliers from 2.0 to 2.1. For these projections, an employment multiplier of 1.5 has
been used to calculate potential net employment gain, meaning for each new job in a primary industry, 0.5
induced or indirect jobs will be created as well. An employment multiplier of 1.5 is a relatively
conservative number to use based on the fact that export or basic industries (i.e. potash and canola) which
produce and sell goods that bring in new income from outside the area (i.e. product is exported) create a
larger multiplier effect than industries that produce goods and services consumed locally. This is
evidenced by research done by Stabler and Olfert in 1992 (Restructuring Rural Saskatchewan: The
Challenge of the 1990's), in which they state, "Development of a major mine in the vicinity of a
community can produce a local boom in housing and commercial development. Several dramatic
examples of this phenomenon were apparent in Saskatchewan during and after the 1960s when potash
mines were developed at several locations in the central and southeastern parts of the province". It is also
pointed out in their research that in addition to population and commercial development growth, relative
gains in business were also apparent. Using an employment multiplier of 1.5 equates to a net increase of
1,800 new jobs (1,200 new jobs multiplied by 1.5 to account for spin-off effects).
For the purpose of our analysis, we will assume that 75% of people migrating to the area will make
Yorkton their permanent residence due to the fact that Yorkton is the largest trading centre in the region
and its many amenities will serve to draw a large portion of these new workers. Based on this
assumption, 1,350 new workers will relocate to Yorkton. Yorkton's average household size, based on the
Federal Census in 2006, is the City's population from 2006 (15,038) divided by the number of private
dwellings located in the city during the same time (6,903), yielding an average household size of 2.2
persons. Based on Yorkton's average household size, it has been assumed that a total of 1,350 new jobs
will actually bring in a total of 2,970 new people (i.e. 1,350 multiplied by 2.2).
It is uncertain how quickly the mines will develop so several projections have been developed. Projection
#2 shows the implications of a large influx of workers over a ten year time frame (i.e. after 2021, it is
assumed that population growth will then return to 1.65% growth per year). Projection #3 shows the
same number of workers coming to Yorkton over a five year time frame (i.e. after 2016, it is assumed that
population growth will then return to 1.65% growth per year). Table 2-2 demonstrates these
implications.
2 U.S. Department of Commerce, Regional Multipliers: A User Handbook for the Regional Input-Output Modeling
System, March 1997, Third Edition. (Economics and Statistics Administration - Bureau of Economic Analysis), 54.
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Under Projection #2, population growth will increase by an average annual growth rate of 2.19% should
an additional 2,970 people move to Yorkton in the next ten years, yielding a population of 31,920 over
the next twenty five years. Under Projection #3, population growth will increase by an average annual
growth rate of 2.21% should an additional 2,970 people move to Yorkton in the next five years, yielding a
population of 32,088 over the next twenty five years.
The fourth projection (Projection #4) creates a safety factor (+0.5%) over the imminent growth that will
be created due to the development of potash mines in the region. Based on a 2.75% average annual
growth, Projection #4 shows that the City of Yorkton could potentially see its population increase to
36,395 over the twenty five year time frame. The City would see between 537 people per year to 923
people per year over the next twenty five years. Based on Saskatchewan Health population numbers, this
number is feasible, due to the error made in calculating the 2010 population number (Section 2.1), which
should have shown Yorkton's population in the range of 18,000 people. Based on this number, Yorkon
saw an average annual growth rate of 2.5% between 2010 - 2011.
It is important to note that municipalities in Saskatchewan have in the recent past underestimated their
population growth. The City of Saskatoon has been growing at a rate of 2.5% consistently for the past
five years and the City's Planning and Development Department expects the trend to continue as long as
the economy thrives and employment is plentiful (Star Phoenix "Rapid Population Growth Poses
Challenges", December 29th, 2011)3. Recent population projections completed for the City of Saskatoon
have underestimated the actual population numbers (The City of Saskatoon and the Saskatoon Health
Region Population Projections 2006 - 2026, June 2010).
The implications of underestimating population growth for a municipality poised for rapid growth are
much larger than overestimating population numbers (i.e. a shortage of land versus the ability to meet and
respond to demand in a planned and timely fashion). It is reasonable to assume that growth in the City of
Yorkton will continue to be strong, like other urban, regional centres in the province have observed. To
demonstrate the implications of this, two projections have been used in the following sections, as
preferred growth scenarios, in determining future land needs (Projections #3 & #4 - 2.21% and 2.75%
average annual growth rates respectively). As pointed out by Kasier et al, "Instead of a single projection,
a population or economic forecast usually should include several projections in order to create an interval
or bracketed forecast of future population or employment and to engage policy makers and the public in
discussion of both the underlying assumptions and future impacts".4
3 Jason Warick, "Rapid Population Growth Poses Challenges", The Star Phoenix, December 29th, 2011.
4 Edward J. Kaiser, et al,. Urban Land Use Planning (University of Illinois: Board of Trustees, 2006) 143-144.
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7
TABLE 2-2: CITY OF YORKTON
POPULATION PROJECTIONS 2008 - 2033
Projection
Year
2011
2016
2021
2026
2031
2036
Projection 1:
Five-year
trend1.65%
18,471
20,049
21,761
23,620
25,637
27,827
Net Population
Increase per
interval
1.65%
--
1,578
1,712
1,859
2,017
2,190
Average Annual
Population
Increase
1.65%
--
316
ppl/year
342
ppl/year
372
ppl/year
403
ppl/year
438
ppl/year
Projection 2:
Five-year trend
(plus extra 297 ppl.
per year 2011-
2021)
18,471
21,584
24,962
27,094
29,408
31,920
Net Population
Increase per
interval
--
3,113
3,378
2,132
2,314
2,512
Average Annual
Population
Increase
--
623
ppl/year
676
ppl/year
426
ppl/year
463
ppl/year
502
ppl/year
Projection 3:
Five-year trend
(plus extra 594 ppl.
per year 2011-
2016)
18,471
23,118
25,093
27,236
29,563
32,088
Net Population
Increase per
interval
--
4,647
1,975
2,143
2,327
2,525
Average Annual
Population
Increase
--
929
ppl/year
395
ppl/year
429
ppl/year
465
ppl/year
505
ppl/year
Projection 4:
2.75% Average
Annual Growth
18,471
21,154
24,228
27,747
31,778
36,395
Net Population
Increase per
interval
2.75%
--
2,683
3,074
3,519
4,031
4,617
Average Annual
Population
Increase
2.75% only
--
537
ppl/year
615
ppl/year
704
ppl/year
806
ppl/year
923
ppl/year
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8
3. RESIDENTIAL
3.1
Land Forecast and Methodology
Assuming that average household size in Yorkton remains in the current level of 2.2 persons per
household, it is possible to estimate the number of dwelling units that will be required to accommodate
projected growth.
Table 3-1 sets out the estimated number of dwelling units that will be required to accommodate growth
using Projection #3 (average annual growth rate of 1.65% plus an extra 594 people per year during 2011 -
2016). This preferred projection for the City of Yorkton (as highlighted in Table 2-2) assumes similar
migration as observed between 2006 - 2011, plus additional in-migration (i.e. an additional 594 people
per year) resulting from potential employment growth (i.e. potash mines & expansion, etc.). After 2021,
it is assumed that population growth will then return to 1.65% growth per year. Given this scenario, the
City of Yorkton will reach a population of 32,088 people by 2036. Additional dwelling units needed over
the twenty-five year time frame are presented in Table 3-1 (i.e. total population divided by 2.2 - average
household size in Yorkton). Table 3-1 also indicates how many additional dwelling units would be
required if population growth exceeded that of Projection #3. Projection #4 (showing a 2.75% average
annual growth rate) indicates that the City of Yorkton would require 1,358 acres of land over the twenty
year time frame and an additional 8,148 dwelling units would be needed to satisfy housing requirements.
Over the past several years, the observed average residential build out density for new subdivisions in
Yorkton has been 3.7 lots per gross acre. Given increased house prices, and corresponding increases in
residential densities (i.e. smaller lots, or multi-family housing becoming more popular), we have
projected the amount of residential land required based on an average residential build-out density of 6.0
lots per gross acre. Additional dwelling units and land required (shown as cumulative) are shown in
Table 3-1.
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TABLE 3-1: CITY OF YORKTON
ADDITIONAL DWELLING UNITS / ACRES REQUIRED
Year
2011
2016
2021
2026
2031
2036
Projection #3
(2.21%)
18,471
23,118
25,093
27,236
29,563
32,088
Additional
Dwelling Units
--
2,112
3,010
3,984
5,042
6,160
Additional
Acres
--
352
502
664
840
1,031
Projection #4
(Safety Factor
2.75%)
18,471
21,154
24,228
27,747
31,778
36,395
Additional
Dwelling Units
--
1,220
2,617
4,217
6,049
8,148
Additional
Acres
--
203
436
703
1,008
1,358
The City of Yorkton currently has 508 acres within its current boundary available for residential
development. Given this, 523 acres (i.e. 1,031 - 508 = 523) are needed to accommodate residential
growth to 2036 under Projection #3. Should growth exceed this estimate, approximately 850 acres of
land could be needed for residential development (Projection #4).
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4. INDUSTRIAL AND COMMERCIAL
4.1
Land Forecast and Methodology
According to research done for the Lincoln Institute of Land Policy by Gerrit Knapp and Terry Moore5
(Land Supply and Infrastructure Capacity: Monitoring for Smart Urban Growth, 2000), forecasting the
demand for commercial and industrial land uses is typically done in two ways. The first way involves
applying a ratio of commercial or industrial lands to population to project future land needs. The second
way involves an estimation of floor area requirements based on existing floor areas and expected rate of
population growth. The method used in this report involves applying a ratio of commercial and industrial
land to projected population growth.
A baseline projection for industrial land needed over the planning time frame (25 years) was performed
based on forecasting scenarios recommended by Philip Berke, David R Godschalk and Edward John
Kaiser in their book entitled "Urban Land Use Planning"6. In order to forecast industrial and
commercial land need using a ratio of land to population, Kaiser et al recommended the following steps:
a)
determine the number of employees to be accommodated;
b)
develop future employment density standards (i.e. employees per gross acre);
c)
divide the future number of employees by density standards to estimate the number of acres that
will be required; and,
d)
add a safety factor.
For the City of Yorkton, the number of employees to be accommodated was calculated using Projection
#3, which indicates that the City of Yorkton could potentially reach a population of 32,088 people by
2036. Given this, there will be an additional 13,617 residents within the City in the planning period. The
number of employees to be accommodated is outlined in the sections below.
To determine both the number of employees to be accommodated (step a) and a future employment
density standard (step b), Federal Census Data (2006) was used to calculate the percentage of residents
working on either industrial or commercial (and community service) zoned land within the City of
Yorkton. The number of employees working within the Yorkton Census Agglomeration was used as the
baseline to determine this. A Census Agglomeration (C.A.) is formed by one or more adjacent
municipalities centered on a large urban area (known as the urban core). To be included in the C.A., other
adjacent municipalities must have a high degree of integration with the central urban area, as measured by
commuting flows derived from census place of work data. Table 4-1, breaks down the Yorkton C.A.
labour force according to industry and generally which class of zoning the industry will fall into,
commercial or industrial. Community service labour (e.g. civil service, education, healthcare) has been
classified as a commercial use.
5 Gerrit Knapp and Terry Moore, "Land Supply and Infrastructure Capacity: Monitoring for Smart Urban Growth",
Lincoln Institute of Land Policy (2000), 15.
6 Kaiser, 365-371.
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TABLE 4-1: CITY OF YORKTON CENSUS AGGMLOMERATION
INDUSTRY BREAKDOWN, STATISTICS CANADA 2006
Industry
Labour Force (persons)
Zoning
Classification
Agriculture and other
resource-based industries
670
Industrial
Construction
470
Industrial
Manufacturing
585
Industrial
Wholesale trade
375
Industrial
Retail trade
1,355
Commercial
Finance and real estate
430
Commercial
Health care and social services
1,300
Commercial
Educational services
625
Commercial
Business services
1,300
Commercial
Other services
1,960
50% Industrial, 50%
Commercial
Total Experienced Labour
Force*
9,070
--
Total Industrial Sector
Workers in CA
3,080
--
Total Commercial Sector
Workers in CA
6,970
--
Source: Statistics Canada 2006 Federal Census
*Refers to persons 15 years and over, excluding institutional residents, who were employed or unemployed
during the week (Sunday to Saturday) prior to Census Day, and who had worked for pay or in self-
employment.
According to city land use data provided by the City of Yorkton, there are currently 995 acres of land
being used for industrial activity within city boundaries. For commercial, 1,021 acres are being used.
These are gross numbers that include roads, lane, and public spaces (i.e. utilities, buffers, etc.).
It is important to note that the categorization of zoning classifications in Table 4-1 may not correlate
directly to the industry (as indicated in the Federal Census data) in all instances. For example, all
wholesale trades are classified as industrial uses; however, on the ground these uses could be zoned
commercial, depending on the type of wholesale trade or the location of the business. The breakdowns of
industrial and commercial land are very broad and while the need for land is apparent, the type of land
that may be needed (i.e. commercial or industrial) is not always clear.
4.2
Industrial Land Forecast
Federal Census data (2006) has been used to calculate the percentage of the total population within the
C.A. (17,438) working within the industrial sector. The total experienced labour force 15 years and older
working in the industrial sector within the C.A. equates to 17.7% (3,080 divided by the population of the
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12
CA - 17,438). To update this to the City of Yorkton's most current population data (Sask Ministry of
Health 2011), the ratio of 17.7% has been applied to the total population of the City of Yorkton (18,471),
yielding 3,269 current employees working in the industrial sector.
Based on the number of employees currently working in the industrial sector (3,269), calculated from
Federal Census employment data, the employment density standard for industrial land in the City of
Yorkton is 3.3 persons per acre (3,269 residents currently working within the industrial sector divided by
total acres currently being used for industrial, 995 acres). By applying this density standard (3.3 persons
per acre) to the number of additional employees who will be working in the industrial sector over the
twenty five year time frame - 2,410 additional employees (13,617 additional people multiplied by the
industrial employee ratio of 17.7%), it is possible to estimate the number of acres required over the
indicated time frame (step c). Table 4-2 outlines the results (cumulative).
It is important to note that generous safety factors, recommended by Kaiser et al, 1995, are often added to
determine the number of required acres, as employment density patterns vary widely with even standard
industrial classifications, and are unlikely to remain constant over time. "Add a safety factor to
accommodate the possibility that employment growth is greater than expected, or at a lower density than
planned, and to create an industrial reserve." Suggested by Knapp and Moore (2000) in their work for the
Lincoln Institute of Land Policy, considerable judgment must be exercised when using such standards to
determine the number of required acres in part because the cost of an underestimate is viewed as greater
than the cost of an overestimate. Given this, we have considered the types of industry and occupations
which dominate the Yorkton landscape, based on historical data provided by the Federal Census. During
the 2006 Census year Yorkton was strong, relative to the province as a whole in the following sectors:
retail trade, health care and social services, business services, wholesale trade, and manufacturing. There
was less employment relative to the provincial average in agricultural and other resource based industries,
educational services, construction, and finance and real estate. Accordingly, industries differ by sector,
with areas dominated by warehousing and primary industries having much lower employment densities
than those that are more labour intensive.
Table 4-2 presents the required industrial acreage for the recommended population projections over the 25
year time frame (step c) using the observed employment density standard for industrial land (3.3 persons
per acre). Industrial employment density standards may be different depending on the sub-sector (i.e.
warehousing and primary industries typically require larger tracts of land than wholesale trade or
manufacturing). In a study by the City of Regina regarding the Ross Industrial Park, it was found that
the overall employment density was 5 persons per acre. Given this, it is assumed that a safety factor need
not be considered in the projection for the City of Yorkton (step d) because we believe that employment
density should not be much lower than 3.3 persons per acre.
The City of Yorkton currently has 702 acres within its current boundary available for industrial
development. Given the existence of 702 acres of developable land within the City boundaries, limited
industrial land is needed over the short to medium term (28 acres). Projection #4 suggests that the City
of Yorkton could potentially need 259 acres over the long term.
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TABLE 4-2: CITY OF YORKTON
ADDITIONAL INDUSTRIAL LAND REQUIRED
Year
2011
2016
2021
2026
2031
2036
Projection #3
(2.21%)
18,471
23,118
25,093
27,236
29,563
32,088
Additional
Industrial
Acres Required
(cumulative)
3.3 persons /
acre
--
249
355
470
595
730
Projection #4
(Safety Factor
2.75%)
18,471
21,154
24,228
27,747
31,778
36,395
Additional
Industrial
Acres Required
(cumulative)
3.3 persons /
acre
--
144
309
498
714
961
4.3
Commercial Land Forecast
Federal Census data (2006) has been used to calculate the percentage of the total population within the
C.A. (17,438) working within the commercial sector. The total experienced labour force 15 years and
older working in the commercial sector within the C.A. equates to 34.4% (5,990 divided by the
population of the C.A. - 17,438). To update this to the City of Yorkton's most current population data
(Sask. Ministry of Health 2011), the ratio of 34.4% has been applied to the total population of the City of
Yorkton (18,471), yielding 6,354 residents working in the commercial sector.
Based on the number of employees currently working in the commercial sector, calculated from Federal
Census employment data, the employment density standard for commercial land in the City of Yorkton is
6.2 persons per acre (6,354 residents currently working within the commercial sector divided by total
acres currently being used for commercial, 1,021 acres). By applying this density standard (6.2 persons
per acre) to the number of additional employees who will be working in the commercial sector over the
twenty five year time frame - 4,684 additional employees (13,617 additional people multiplied by the
commercial employee ratio of 34.4%), it is possible to estimate the number of acres required over the
indicated time frame (step c). Table 4-3 shows the results (cumulative).
Table 4-3 presents the required commercial acreage for the preferred population projection (Projection
#3) over the planning time frame using the density standard of 6.2 persons per acre for commercial land.
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14
Similarly to the industrial land forecast, no safety factor has been added to the commercial land forecast
(step d) as the current commercial employment density is relatively low.
The City of Yorkton currently has 335 acres within its current boundary available for commercial
development. Given the existence of 335 acres of developable land within the City boundaries, 395 acres
(730-335 = 395) are needed to accommodate short to medium term commercial growth.
Looking above the historical population trend and assumption of migration due to mining activities in the
region, Projection #4 suggests that the City of Yorkton could potentially need 626 acres of commercial
land over the twenty year time frame.
TABLE 4-3: CITY OF YORKTON
ADDITIONAL COMMERCIAL LAND REQUIRED
YEAR
2011
2016
2021
2026
2031
2036
Projection #3
(2.21%)
18,471
23,118
25,093
27,236
29,563
32,088
Additional
Commercial
Acres Required
(cumulative)
6.2 persons / acre
--
258
367
486
615
755
Projection #4
(Safety Factor
2.75%)
18,471
21,154
24,228
27,747
31,778
36,395
Additional
Commercial
Acres Required
(cumulative)
6.2 persons / acre
--
149
319
515
738
994
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15
5.
Conclusion
The City of Yorkton requires additional land to accommodate future development. Potential employment
growth in the City and broader region are expected to drive rapid, unprecedented growth in the City both
in terms of population and employment. Land need calculations based on historical growth, current land
supply, employment densities and a migration assumption, suggests that the City will require an
additional 523-850 acres for residential growth, an additional 395-626 for commercial growth, and an
additional 28-259 acres for industrial growth. The City has identified an appropriate amount of future
short and medium term residential and commercial land within its 2011 boundary alteration application.
The cost and planning process associated with designing and servicing new urban areas (e.g. layout,
servicing, and construction) is such that a city must have adequate land within its boundaries to respond
to rapidly changing economies and migration patterns. A 25 year planning horizon is reasonable and has
precedent in Saskatchewan (e.g. Saskatoon's recent annexation is intended to accommodate 40 years
growth).
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REPORT
B-1
Appendix B - City of Yorkton Future Land Use
Concept Map
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REPORT
C-1
Appendix C - Capital Project Worksheets
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Figure 1: Road and Related Infrastructure Capital Projects
Road System Capital Costs (2013 Dollars)
Benefit Allocation
Total Capital Cost
($)
Recoverable from
Development
Charge
Municipal
Responsibility
#
Description
Target
Year
New
Development
Existing
Development
1
Highway 9/Grain Millers Drive Intersection
2014
80%
20%
550,000.00
440,000.00
110,000.00
2
Highway 9 North Industrial Intersection
2018
100%
0%
1,600,000.00
1,600,000.00
-
3
Broadway Street, Hwy No. 52 off-ramp
2018
100%
0%
1,000,000.00
1,000,000.00
-
4
Range Road 2040 upgrade between
Highway 10 and York Road East (including
Hwy. No. 10 intersection)
2020
90%
10%
4,600,000.00
4,140,000.00
460,000.00
5
York Road Extension to Range Road 2040
(including intersection)
2023
90%
10%
4,130,000.00
3,717,000.00
413,000.00
6
Gladstone Avenue upgrade to Queen
Street (including intersection)
2028
100%
0%
4,550,000.00
4,550,000.00
-
7
Sully Avenue Extension north of Hwy. No.
16
2028
100%
0%
10,157,500.00
10,157,500.00
-
8
Intersection Hwy No. 9 at Queen Street
2028
100%
0%
1,100,000.00
1,100,000.00
-
9
Range Road 2040 upgrade to connect to
Proposed Truck Bypass
2033
100%
0%
2,062,500.00
2,062,500.00
-
10
York Road Extension from Range Road
2040 to Range Road 2039
2035
100%
0%
5,525,000.00
5,525,000.00
-
11
Range Road 2040 upgrade between Hwy
No. 10 and Hwy. No. 16 (including Hwy.
No.16 intersection)
2035
40%
60%
6,287,500.00
2,515,000.00
3,772,500.00
12
Range Road 2043 upgrade (including
intersection of Rosefield at Queen Street)
2035
100%
0%
2,325,000.00
2,325,000.00
-
13
Gladstone Avenue Extension north of Hwy.
No. 16
2035
100%
0%
4,095,000.00
4,095,000.00
-
Total Capital Cost Estimate
47,982,500.00
43,227,000.00
4,755,500.00
Land Use Classification
Projected Growth Area (ha)
Vehicle Trip Ends (VTE)
Total Equivalent VTE
Development Charge per
Gross Hectare ($)
Residential
335
11.52
3,859.20
14,414.19
Commercial
253
85.35
21,593.55
106,792.65
Industrial
106
85.8
9,094.80
107,355.71
Totals
694
34,547.55
Total Recoverable from Development Charge
$ 43,227,000.00
Cost per Trip End
$ 1,251.23
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Figure 2: Water System Capital Projects
Water System Capital Costs (2013 Dollars)
Benefit Allocation
Total Capital Cost
($)
Recoverable from
Development
Charge
Municipal
Responsibility
#
Description
Target
Year
New
Development
Existing
Development
1
Husky Road to Darlington Street- 400 mm
Trunk Main
2014
100%
0%
960,000.00
960,000.00
-
2
York Road to North Industrial - 500 mm
2014
60%
40%
4,800,000.00
2,880,000.00
1,920,000.00
3
Riverside Drive to York Road - 400 mm
Trunk Main
2030
90%
10%
960,000.00
864,000.00
96,000.00
4
Grain Millers Drive - 500 mm Trunk Main
2025
100%
0%
4,080,000.00
4,080,000.00
-
5
West Tie In - 500 mm Trunk Main
2035
100%
0%
1,150,000.00
1,150,000.00
-
6
North Water Tower (10,000 m3)
2035
100%
0%
7,000,000.00
7,000,000.00
-
Total Capital Cost Estimate
18,950,000.00
16,934,000.00
2,016,000.00
Land Use Classification
Projected
Growth Area
(ha)
Dwellings
per Hectare
Persons
per
Dwelling
Litres
per
Person
Consumption
(L/hectare/day)
Total Consumption
Units (L/day)
Development Charge
per Gross Hectare ($)
Residential
335
15
2.5
500
18,750
6,281,250
22,112.82
Commercial
253
1
1
22,500
22,500
5,692,500
26,535.39
Industrial
106
1
1
22,500
22,500
2,385,000
26,535.39
Totals
694
14,358,750
Total Recoverable from Development Charge
$ 16,934,000.00
Cost per Consumption Unit
$ 1.18
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Figure 3 : Sanitary System Capital Projects
Sanitary System Capital Costs (2013 Dollars)
Benefit Allocation
Total Capital Cost
($)
Recoverable from
Development
Charge
Municipal
Responsibility
#
Description
Target
Year
New
Development
Existing
Development
1
Trunk Installation Husky Road to WWTP -
900 mm (3410m)
2014
100%
0%
5,100,000.00
5,100,000.00
-
2
Trunk Installation Husky Road from
Quance access to Hwy No. 10 Intersection
- 900 mm (570m)
2014
100%
0%
853,000.00
853,000.00
-
3
Trunk Main along Hwy No. 10 - 525 mm
(1625m)
2014
100%
0%
1,950,000.00
1,950,000.00
-
4
Husky Road, Hwy No. 10 to Hwy No. 9
Trunk Main- 700 mm (3250m)
2030
100%
0%
4,550,000.00
4,550,000.00
-
5
Queen Street Gravity Trunk Main to
Rosefield Drive - 525 mm (3260m)
2038
100%
0%
3,912,000.00
3,912,000.00
-
Total Capital Cost Estimate
16,365,000.00
16,365,000.00
-
Land Use Classification
Projected
Growth Area
(ha)
Dwellings
per Hectare
Persons
per
Dwelling
Litres
per
Person
Consumption
(L/hectare/day)
Total Consumption
Units (L/day)
Development Charge
per Gross Hectare ($)
Residential
335
15
2.5
350
13,125
4,396,875
17,218.55
Commercial
253
1
1
22,500
22,500
5,692,500
29,517.51
Industrial
106
1
1
22,500
22,500
2,385,000
29,517.51
Totals
694
12,474,375
Total Recoverable from Development Charge
$ 16,365,000.00
Cost per Consumption Unit
$ 1.31
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Figure 4: Storm System Capital Projects
Storm Water System Capital Costs (2013 Dollars)
Benefit Allocation
Total Capital Cost
($)
Recoverable from
Development
Charge
Municipal
Responsibility
#
Description
Target
Year
New
Development
Existing
Development
1
West Side Drainage Remediation
2015
0%
100%
27,000,000.00
-
27,000,000.00
2
Hwy. No. 9 ( north industrial intersection
crossing )
2018
25%
75%
3,000,000.00
750,000.00
$2,250,000.00
3
Grid road to WWTP Hwy. No. 9 north
crossing
2018
25%
75%
3,000,000.00
750,000.00
$2,250,000.00
4
Hwy. No. 9/Queen Street
2028
100%
0%
500,000.00
500,000.00
-
5
Gladstone Avenue extension north of Hwy.
No. 16 (includes storm pond)
2035
100%
0%
2,500,000.00
2,500,000.00
-
Total Capital Cost Estimate
36,000,000.00
4,500,000.00
31,500,000.00
Land Use Classification
Projected Growth
Area (ha)
Land Use Runoff
Coefficient
Total Impervious
Hectares
Weighted Average
Recoverable
Development Charge per Gross
Hectare ($)
Residential
335
50%
167.5
1,605,773.33
4,793.35
Commercial
253
90%
227.7
2,182,893.05
8,628.04
Industrial
106
70%
74.2
711,333.62
6,710.69
Totals
12,474,375
469.4
Total Recoverable from Development Charge
$ 4,500,000.00
Figure 5 : Recreation Capital Projects
Recreation Capital Costs (2013 Dollars)
Benefit Allocation
Total Capital Cost
($)
Recoverable from
Development
Charge
Municipal
Responsibility
#
Description
Target
Year
New
Development
Existing
Development
1
Ice Rink
2021
100%
0%
8,700,000.00
8,700,000.00
-
Total Capital Cost Estimate
8,700,000.00
8,700,000.00
-
Land Use Classification
Projected
Growth Area
(ha)
% Allocation
Development Charge
per Gross Hectare ($)
Residential
335
100%
25,970.15
Commercial
253
0%
-
Industrial
106
0%
-
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REPORT
D-1
Appendix D - Provincial Development Charge
Survey
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Figure 6: Provincial Development Levy Survey
Community
Residential Levy
($/hectare)
Commercial Levy
($/hectare)
Industrial Levy
($/hectare)
Notes:
Prince Albert
$ 98,372.00
$ 98,372.00
$ 98,372.00
The City of Prince Albert adopted a uniform offsite levy rate
in 2011 and is staggering its full implementation to insulate
the City from the full impact of the increased charges on
development.
Weyburn
$ 271,715.56
$ 263,734.27
$ 263,008.83
City of Weyburn recently adopted a land use based levy
bylaw in June 2013.
Estevan
$ 232,279.00
$ 232,279.00
$ 232,279.00
Estevan recently adopted a uniform offsite levy rate. The
City felt a uniform rate best suited the City's capacity to
implement, track and update the rate.
Warman
$ 710.00 per front metre
for single family and
$5,000.00 per door for
multi-family
Negotiated on a
case by case basis
within the servicing
agreement
Negotiated on a
case by case basis
within the servicing
agreement
Increases are expected in their fees for several years and
will most likely be a combination of an inflation factor,
adjustments to increasing infrastructure costs and likely
further increases to "catch-up" with the true costs of off-site
development costs.
Martensville
$ 700.00 per front metre
or $103,740.00
$ 51,870.00
$ 51,870.00
Martensville's levy structure is essentially a uniform levy
excepting that they apply a frontage levy for single family
developments. The City has established a uniform levy of
$103,740.00 for all other land uses including multi-family
developments but has reduced the uniform levy by 50% for
commercial and industrial development as a means of
incenting these forms of development.
Swift Current
$ 45,000.00
$ 45,000.00
$ 45,000.00
Swift Current employs a uniform levy rate based upon 2008
capital cost estimates.
Saskatoon and Regina have developed unique and inherently more complicated systems of assessing development charges, making a direct
comparison to the above noted communities very difficult to provide. In 2013, the City of Regina assessed a $ 241,900 per hectare fee with a 30%
upfront payment due at the execution of the agreement signing with the balance of the charge payable in four additional installments over a 24
month period. The City of Saskatoon employs a land use specific variable fee by linear metre rate which changes depending upon a property's
variance from a set average width and depth. In both of these instances, implementation and management of these types of development
charges requires significant administrative capacity which would somewhat dilute the potential benefit to the City of Yorkton.
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