This Detailed Area Plan is one of a series being prepared which when complete will provide detailed planning proposals for the whole Metropolitan Area. The proposals are based upon the policies which have been adopted by Council in the Metropolitan Development Plan. Some of the major points of this Detailed Area Plan are:
The term "low density" if expressed in terms of persons per acre will be about 40 persons per acre maximum but can be considered to refer primarily to the broad range of single family development, and is intended to provide a range from 4 to 17 dwelling units per acre depending on the type of housing. Variations from single family uses within "low density" areas should be considered only in the special circumstances described in the "zoning" section of this Plan.
The Detailed Area Plan for Tuxedo is one of a series of District Plans which are being prepared following the adoption of the Metropolitan Development Plan. Upon completion, these District Plans will provide a detailed plan for the whole of the Metropolitan Winnipeg area.
The Metropolitan Development Plan is primarily concerned with the establishment of a general pattern of development policies such as land use and transportation, from a Metropolitan Winnipeg point of view, and the preparation of a Detailed Area Plan such as this is the next stage in the planning process. The Detailed Area Plan is concerned with the more detailed aspects of planning and development from a local point of view and both of these plans are considered to be complementary. The Detailed Area Plan provides a guide by which the Metropolitan Corporation, the Town of Tuxedo and the private sector can work towards the orderly and economic development of Tuxedo.
The objective of this Plan is to provide a guide for the efficient, economic and desirable development of Tuxedo within the next twenty years. This guide will act within the context of the overall development of the Metropolitan Winnipeg Area which is in turn predicated on a forecasted population of 773,000 by 1991 for the Metropolitan Area. During this period, however, the economic, social and technological assumptions used in the preparation of this Plan may become invalid. Therefore, in order to maintain the viability of this Plan, revision should be made at approximately five year intervals.
Located in the southwest quadrant of the Metropolitan area, the Town of Tuxedo lies west of that part of the City of Winnipeg known as River Heights and west and north of the R.M. of Fort Garry. Tuxedo is flanked on the west by Charleswood while its northern boundary follows the limits of Assiniboine Park and Wellington Crescent.
The population of Tuxedo increased from 1,062 in 1921 to 1,627 in 1961. During this period the population growth was slow and erratic. In the period 1951 to 1961 there was no population change. From 1961 to the present Tuxedo has experienced a population growth of over 88 percent bringing the population to its present level of 3,100.
The northern part of the Town of Tuxedo provides a high quality residential environment catering to the affluent. The southern portion of the Town offers large industrial tracts, which at present includes the only two cement plants in the Metropolitan Area.
The land now occupied by the Town of Tuxedo was originally part of the vast territory which was granted by the Hudson's Bay Company to Lord Selkirk on June 12, 1811. In 1857 the land was surveyed and divided into a series of farms which extended to a depth of two miles from the river, and in 1880 were extended to a depth of four miles.
The first Municipal Division under the Provincial Act in 1880 partitioned the province into 31 municipalities. One of these was the Rural Municipality of Assiniboia which contained the parishes of Headingley, St. Charles, St. James and St. Boniface west.
In 1905 the City of Winnipeg purchased 283 acres on the south side of the Assiniboine River from Assiniboia for development as a city park and a year later the provincial government set up an agricultural college on a strip of property 6 chains in width which it purchased on the eastern limit of the Municipality. In 1908, a number of investors, mainly British, operating under the name of Tuxedo Rock Co. Ltd., subdivided part of a 5,000 acre parcel which they called Tuxedo. In 1911, the Town of Tuxedo was incorporated and became a separate and exclusive residential town. Shortly after Tuxedo's incorporation the Agricultural College was forced to relocate in Fort Garry because it was unable to expand.
A design for the Town of Tuxedo was created by the noted landscape architects, the Olmsted Brothers of Brookline Massachusetts following the principles of "harmonious combinations of city and country, dwelling house and garden with adequate open space for life, health and beauty of environment". Lots were designed to a depth of 130 feet and were separated at the rear by a 20 foot lane under which were laid all utilities, so that no boulevard had to be torn up for repairs.
Olmsted Park (now Huebach Park) dividing Park Boulevard was to be the most ornate park ever planned in Canada. Three thousand feet long and 400 feet wide it was planned to contain drives, bridle paths, hurdles, wading pool for children, pergolas and shade trees. The exclusive nature of Tuxedo was well established — for the courts ruled in 1911 that the Grand Trunk Railway (C.N.R.) must direct its line around the townsite in order to preserve its unspoiled residential character. Although Fort Rouge and Crescentwood had quite substantial homes at the time, Tuxedo featured the most exclusive homes in the City.
In 1912 a large cement plant, serving much of western Canada, was constructed on the southern limit of Tuxedo by Canada Cement Company. One of the earliest Town Planning Schemes in Canada was introduced in 1925 to protect the residential nature of the Town by determining standards for buildings and sites.
A large part of the Town of Tuxedo is at present in an undeveloped state. A portion of this area, to the north of Wilkes Avenue is expected to develop for residential purposes during the time and growth period of this plan.
Industrial expansion is expected in the area to the south of Wilkes Avenue, between Kenaston Boulevard and Waverley Street within the time period of the Plan, however, the undeveloped area west of Kenaston Boulevard has been indicated as an industrial reserve.
The Future Land Use maps indicate the proposed general uses and groupings of uses for the Town of Tuxedo in the years to come. The legend of the maps indicate the variety of uses existing and proposed, and in the cases of the groupings of multiple-residential uses, generally defines the upper limits of the residential densities.
This Plan envisages that the northern portion of Tuxedo is likely to remain as a residential suburb in the future while the southern portion will continue to develop as an industrial area. In the developing portions a mixture of single family homes and multiple accommodation is anticipated with attendant park, school and other community facilities. The multiple housing will be directed to those areas where the increase in population density can be well served and further, can be accommodated without disturbing neighborhoods of single family houses. Residential development, according to this Plan, will provide for a total population of 7,700 persons based upon the estimated population increase for the Town.
The term "low density" which appears on the proposal maps include low density housing such as single family, duplexes, semi-detached units and other types of housing in this general density range, usually less than 40 persons to the gross acre or within the range of 4-17 units to the acre depending upon the unit type. "Low density areas" are now and will continue to be primarily single family. It is desirable, particularly in new areas to permit a variation in housing types. New development in "low density" areas should not be considered at high densities; the top of the permitted range should not exceed about 40 persons to the gross acre. The number of units per acre which could appear within this range might vary from about 4 units in single family areas to about 17 units in apartment sections depending upon circumstances of location and type of unit. The actual number of units per acre will be determined by zoning and a more detailed discussion of this subject may be found in the "Zoning" section of this Plan. It should be understood that it is not intended to affect adversely the stability and character of existing areas and in examining applications for development in "Low density" areas, these factors, will be considered paramount in determining the nature of the development to be permitted. The term can also be considered to include local commercial facilities where required. The sort of commercial facility visualized within this category is the small centre made up of a very few outlets to serve the immediate neighborhood. The location and site development of small centres ii terms of appearance, scale and service should enhance the area in which it would be located. The introduction of this type of facility is considered to be suitable largely in areas not now developed, where a need may exist due to distance from major shopping facilities. Indication of precise location is not possible until a Detailed Development Pattern is prepared.
The specific proposals of the Plan which are summarized on Map 5 are detailed in the part of the Plan which follows. Together these proposals comprise a comprehensive long-range strategy for improvement of the developed parts of the area and provision for its expansion.
In order to facilitate a detailed discussion of Tuxedo, the Town has been divided into two Local Planning Areas as shown outlined on Map 6. The boundaries of these Local Planning Areas are related as far as possible to areas of similar use and character, traffic zones, polling divisions and census tracts.
The names of the Local Planning Areas are:
The Tuxedo Park Local Planning Area lies to the north of Wilkes Avenue and is primarily the residential area of Tuxedo, although it does contain such institutions as St. Paul's High School, the Canadian Mennonite Bible College and the Manitoba School for the Deaf as well as Tuxedo Golf Course and large tracts of undeveloped land.
Initial development in Tuxedo Park took place in the section of the town north of Corydon Avenue between 1910 and the outbreak of the War in 1914. Despite the setbacks caused b two World Wars and a serious depression, development in this area was virtually completed by 1950. This section is characterized by large gracious homes, substantially built, mostly of Georgian, Tudor and New England styles, set on large well landscaped properties.
The area south of Corydon Avenue was developed after 1950, starting in the area between Park and Shaftsbury Boulevards. The area to the east of Huebach Park was opened in the early 1960's. This area has a relatively uniform character, most of the homes being large structures of contemporary design. While more recently a period of revival in house design is evident and some of the contemporary designs could be described as avant garde. A shopping centre which meets many of the needs of the community was constructed on the north side of Corydon Avenue at the east limit of the Town in the early 1960's and a hotel has been constructed on the same site.
It is anticipated that during the time period of this Plan the population of Tuxedo will grow from its present level of 3,100 too7,700, an increase of 4,600 persons. The plan presented foresees the development of those areas presently zoned for multiple family accommodation north of the shopping centre and south of Corydon Avenue, the infill of some 130 single family lots which, although serviced, are still vacant, and residential expansion in the area south of Grant Avenue and east of Huebach Park. The construction of multiple family housing around the shopping centre would create an interesting centre for the Town of Tuxedo, a focus which it now lacks.
It is anticipated that the residential expansion in the area south of Grant Avenue would not be restricted to single family housing, but rather would be a mix of high quality townhouses, patio homes and garden apartments along with the traditional single family house. The location of the multiple units should be determined by a detailed plan of the area following the standards set out under the definition of "Low density". (see page 9)
The housing market in Tuxedo presents an excellent opportunity for the construction of improved types of multiple dwellings. For too long a period Winnipeg's multiple housing types have not adequately met all the needs of many people seeking this type of accommodation. Many of these have been poorly designed apartments which merely provide shelter and walls against which to line furniture. They seldom provide any usable open space, with the exception of the "high rise" apartment which sometimes offers a megre balcony. Privacy is often difficult to obtain, both within the apartment unit and between units. These faults can be readily corrected, and in many cases without great cost. Good design seldom costs money, but rather time at the conceptual level.
It has been discovered in the American housing market that those people who desire to rent luxury units seldom balk at relatively high rents. They are willing to pay extra for the space, the privacy, the good design and the atmosphere of the project. Many are former owners of expensive suburban homes while some are fugitives from high rise living within the city centre who are accustomed to high rents but prefer a suburban environment. They tend to have few children living with them, and more often than not, those few are either infants or college students. With some exceptions they are generally older than other renters or homeowners; 50 is usually a more common age than 30.
It is clear that any rental units supplied for the luxury market in Tuxedo must not only be spacious and well designed, but must also offer all the conveniences found in the single family unit. Virtually the entire aspect of luxury multiple housing has been left unexplored in the Metropolitan Area. The only types of multiple accommodation which have been constructed recently have been townhouses and high rise apartments. Although many examples of these forms of multiple family accommodation can be found, few good examples have been built, and among these, even those constructed for the luxury market do not provide all the conveniences and amenities which can reasonably be expected.
Still to be developed is the patio house and the garden apartment. The patio house design gives renters more private outdoor living than they could get in most single family houses. Rooms are usually oriented to outdoor spaces and each patio house is at ground level. There is no restriction on the size of the unit or on the height. The patio house offers all the amenities of the single family house with much less maintenance. The outdoor space of the unit is limited in size leaving enough gardening to be pleasurable, but not sufficient to become a chore. The garden apartment is usually two or three storeys in height set in an intensely landscaped areas. The ground level apartments have direct access to the outside, while those apartments on the upper levels are provided with large balconies or decks which can be landscaped by the use of potted plants and trees in tubs.
Typical floor plans of both the patio house and the garden apartment are shown as well as typical site plans for these and town houses. While people no longer believe that in order to obtain privacy one must live in a single family house, it is neverthelesss necessary to provide sufficient usable open space surrounding the multiple family projects. Regardless of the type of accommodation being considered, this criteria should be mandatory for luxury multiple housing. (see illustrations)
Staging of development in Tuxedo could be accomplished in two ways. Should the demand for multiple accommodation in Tuxedo be deemed sufficiently large development could take place on the two sites now zoned for the purpose adjacent to the shopping centre. At the present rate of construction the lots available for infill north of Grant Avenue will accommodate the needs for new single family housing for the next three to five years. Expansion south of Grant Avenue could then begin as the area to be infilled is completed, being developed with a mixture of housing types following the standards set under the definition of "low density".
If, however, the demand for multiple family rental accommodation does not warrant the development of the sites presently zoned for the purpose, development of the area south of Grant Avenue could follow completion of the infill to the north. The multiple family housing on the sites adjacent to the Shopping Centre could then be developed when there is sufficient demand for such development.
Since the land lying west of Shaftsbury Boulevard with the exception of that presently in use, will not likely be required for residential purposes during the time period of this plan it is suggested that it be presered in its natural state and used as a wilderness park for this period of time.
Both Tuxedo and the Parks Division of the Metropolitan Corporation have expressed reservations about such a park. However, if while the area is being used for park purposes these reservations prove unfounded, then consideration should be made to include this park within the park system of the Metropolitan Area.
In addition to the Wilderness Park it is suggested that Huebach Park be extended south as development proceeds.
The Tuxedo South Local Planning Area lies to the south of Wilkes Avenue and is characterized primarily by industrial and agricultural uses as well as large areas of vacant land.
The major industrial uses in Tuxedo South are the two cement plants operated by Canada Cement Co. and Inland Cement Co. Both industries are on large property holdings located on the west side of Kenaston Boulevard. The other industries in the area are located east of Kenaston Boulevard and include a batching plant and a gas storage depot. There are a few homes located along McGillivray Boulevard in the area of Fort Whyte.
It is anticipated that Tuxedo South will eventually be completely devoted to industrial uses, with initial development occurring between Waverley Street and Kenaston Boulevard. The undeveloped area west of Kenaston Boulevard should be retained as an industrial reserve. Industries establishing in this area should be set on large properties and should, along with those already established in the area, be encouraged to landscape and screen their properties in order to enhance the environment and cut out unsightly views such as storage areas.
Corydon and Grant Avenues serve as major east-west thoroughfares for the residential areas of Tuxedo, while to a lesser extent Wellington Crescent serves the residents in the northern portions of the town as well as serving as a pleasant river drive leading to one of the major entrances of Assiniboine Park. Wilkes Avenue and McGillivray Boulevard serve as east-west thoroughfares for the industrial areas in the southern section of the Town.
The only major north-south thoroughfares existing in Tuxedo are Kenaston Boulevard and Waverley Street which serve the industrial area of the Town, provide access to the University of Manitoba, and serve other thoroughfare functions not necessarily related to the Town of Tuxedo.
In the future a portion of the Suburban Beltway willl traverse the south-west corner of the industrial area extending from Charleswood and continuing through Fort Garry. A major east-west thoroughfare is proposed to extend through Tuxedo connecting Charleswood with Taylor Avenue and the extension of Jubilee Avenue. The possibility of routing this thoroughfare along the edge of the C.N.R. Gladstone subdivision is currently under study, so as to avoid the creation of awkward land parcels on its southern side and thereby contribute to the character of the environment of the residential area through which it passes.
Consideration should be given to the installation of grade seaparation facilities or other safety devices to accommodate pedestrian traffic across major roads and railways.
At the present time the area bounded by Wellington Crescent, Grant Avenue, Edgeland Boulevard and Shaftsbury Boulevard is serviced by sewer and water as well as a system of storm sewers. The existing trunk sewers (both storm and sanitary) have been designed with sufficient capacity to serve the area between Grant and Wilkes avenues west to Shaftsbury Boulevard.
The area to the south of Wilkes Avenue is not serviced with sanitary sewer and water. The sanitary system is largely dependent on the construction of the sewage treatment plant ii the southern part of the Metropolitan Area and its attendant trunks. Storm drainage is partially handled by an existing storm sewer built before the War of 1914. This sewer has been intercepted by the new storm trunk which is capable of handing the drainage fro mthe industrial area as well as that of the residential area.
Water services do not present much problem in this area as these facilities can be built whenever the need arises.
All new areas of development should be staged so as to follow the principle of contiguous development, i.e., any area selected for urban expansion should be contiguous to existing developed areas. This means that isolated development separated from existing areas will be discouraged. When new development is not contiguous, the cost of providing many services is considerably higher than it would be for a contiguous area. Such services as public transportation and education are examples of services which would incur extra costs. Furthermore, experience has shown that non-contiguous development complicates the production of workable subdivision layouts for the areas remaining in between the developed areas.
All public utilities in new areas of development should be required to be placed underground. This practice should contiiue and be extended in developed areas when services are being replaced or expanded.
To require that all public utilities be placed underground in new areas of development, and in existing developed areas when services are being replaced or expanded.
The Assiniboine South School Division No. 3 is responsible for the provision of educational facilites in Tuxedo in cooperation with the Department of Education of the Province of Manitoba and the Town of Tuxedo. The distribution of the required educational facilities in this area should be planned in keeping with the development and population assigned and distributed in this plan. Existing school sites are shown on the Future Land Use Plan. Proposed public school sites are shown diagramaticall; the specific location to be determined in consultation with the Board of the Assiniboine South School Division No. 3 and the Town of Tuxedo, at the time Detailed Development Patterns are prepared.
Whenever possible, the size of public school sites should be based upon the following standards:
To cooperate with the Board of Assiniboine South School Division No. 3 in the provision of adequate school facilities to the standards outlined in accordance with the development and population assigned and distributed in this Plan.
With the exception of a large recreation area adjacent to Tuxedo School and a series of "parkettes" or open squares in the area east of Huebach Park, Tuxedo has no small local parks and playgrounds. It is, however in a unique position, being surrounded by major open spaces which are easily accessible from all the developed areas in Tuxedo.
The major open spaces within and surrounding Tuxedo are Huebach Park and Assiniboine Park, both maintained and operated by the Metropolitan Corporation for use as metro-wide park facilities and Tuxedo Golf Course, a private course which is available to the public. The proposed Wilderness Park could provide more open space for the residents of Tuxedo — at least for a limited time period.
The existing open space north of Grant Avenue would appear to be adequate to meet the needs of the present and future population. The major public open spaces are sufficiently close to all areas to allow easy access, and the existing recreation centre is well located adjacent to what will become the town centre. There will be a need for open space in the residential area south of Grant Avenue since the major open spaces are sufficiently distant to prevent easy access. In order to satisfy the recreational needsit has been determined that a minimum of 10 percent of the land area in a residential subdivision should be reserved for open space and school use. This would include such uses as children's playgrounds, small local parks and elementary and junior high school sites.
The design and appearance of the community is one of the many factors which determine what the community is like as a place to live, and also one of the factors by which others judge a community. The Metropolitan Development Plan deals with this aspect of the community's development in terms of General Service Areas, Major Thoroughfares, Community Service Buildings in Living Areas, Residences, Working Areas, Signs and Billboards and Overhead Wires.
Tuxedo Park Shopping Centre presents a reasonably uniform appearance, however, greater coordination of signs and landscaping the vast areas of parking would improve the physical appearance of the area making it more identifiable as part of the town centre.
In most areas, hydro, telephone and other utilities have been placed underground. This practice should be continued in new areas as well as older areas when replacement is required. A policy regarding this matter is expressed in the section dealing with public utilities.
The appearance of industrial areas, particularly where they now or will adjoin existing or proposed residential areas, should not be overlooked. Future industrial development should be of the industrial park nature. Minimum development and performance standards such as those prposed by thte new Metropolitan Winnipeg Zoning By-law should be applied. It is unlikely that either the Corporation or the municipal government could suceed in enforcing a minimum standard of good housekeeping in the case of existing industries where buildings and grounds are unsightly. However, the Town could attempt to introduce screen planting along rights-of-way where this situation exists.
The "parkettes" or open squares east of Huebach Park would benefit from the introduction of landscape materials, street furniture and other equipment suitable to the use which they are intended to serve. Many landscape materials take some years to develop to maturity and for this reason it is desirable that programs begin as soon as possible.
Consideration should be given to the possibility and desirability of rezoning some areas of Tuxedo in accordance with the proposed and existing land use.
The district recreation centre adjacent tooTuxedo School should be rezoned to Parks and Recreation (PR) in order to protect it from possible development as a duplex area for which it is now zoned. Similarly, that portion of land along Edgeland Boulevard between Wellington Crescent and Nanton Boulevard should be zoned to Parks and Recreation. It would seem desirable to maintain this section as an amenity area.
Ideally, from Tuxedo's point of view, and in keeping with the Development Plan policy of contiguous development, it would be desirable to rezone the undeveloped land west of Tuxedo Golf Course and the Canadian Mennonite Bible College from "R1" to "A1". The zoning in Tuxedo South should be maintained as it now stands. The "A1" district west of Waverley Street should be rezoned to the industrial classification as the need arises.
The term "low density" has been defined in an earlier part of this reporot, "the Plan in General". By and large "low density" areas are visualized as containing mainly single family accommodation but in certain new and developing areas it is appropriate to consider a low density mix, similar in density to duplex development, but permitting everything in the range of housing types. It should be clearly understood however, that applications for development of this kind will be considered on individual merit based upon a variety of factors, particularly the effect on adjoining developments.
The upper limit of density which will be permitted in these individual areas if expressed in terms of persons per acre will be in the vicinity of 40 persons. The zone which will control these areas will have a maximum Floor Area Ratio of 0.40, and permit a maximum building coverage of 40 percent. All housing types will be permitted in this zone, for example apartments, row housing and single family, but, in all cases the density will be controlled basically by the maximum Floor Area Ratio which falls within the framework of the general figure of approximatly 40 persons per acre maximum. Within these limitations up to 17 apartment units ppr acre could be permitted. Row houses and other types of horizontal multiple dwellings would produce fewer than 17 units per acre, because of their relatively larger floor areas and lot coverage. These limitations are offered to describe the density, but it must be borne in mind that developments of this nature would hae to conform to the other requirements such as parking and yards. The details of the zoning to deal with this kind of development will be recommended in thte Metropolitan Zoning By-law, or incorporated as interim measures as amendments to existing by-laws.