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BY LAW NO. 7392
BEING A BY LAW of the City of Brandon to establish the Brandon City Plan.
WHEREAS the Brandon & Area Planning District ceased to exist as of
January 1, 2020;
AND WHEREAS Section 40(2) of The Planning Act requires the City of Brandon,
being not part of a planning district, to prepare a development plan for the City;
AND WHEREAS Section 45 of The Planning Act provides the City the authority to
adopt a development plan;
AND WHEREAS Section 63(1) of The Planning Act allows the City of Brandon to
establish secondary plans across the City;
AND WHEREAS Section 64 of The Planning Act provides that secondary plans may
be amended;
AND WHEREAS the City of Brandon desires to incorporate the City's development
plan and secondary plans into a single volume of long-term policy documents to
guide the City's management of growth and change;
NOW THEREFORE the Council of the City of Brandon, in regular session duly
assembled, enacts as follows:
1.
The development plan, attached hereto and marked as "Schedule A" is
hereby adopted and shall be known as the Brandon City Plan.
2.
Within "Schedule A" of this by-law, Part 4, Division 1 of The Planning Act
governing development plans shall apply to Parts 1 through 10 inclusive of
the Brandon City Plan.
3.
Within "Schedule A" of this by-law, Part 4, Division 2 of The Planning Act
governing secondary plans shall apply to all Schedules of the Brandon City
Plan, including the future addition of Schedules for additional secondary
plans.
4.
Within "Schedule A" of this by-law, all Appendices of the Brandon City Plan
are for information only, have no force or legal effect of a by-law, and may
have individual Appendices added to or removed from the Brandon City Plan
without any amendment to this by-law.
5.
Pursuant to Sections 51 and 52 of The Planning Act, the development plan
provisions of the Brandon City Plan shall come into full force and take effect
on the day following its passage, and all previously existing development
plans affecting the City no longer have any effect.
6.
Further to Section 3, the City will incorporate the City's existing secondary
plans as part of the Brandon City Plan at a later date in accordance with
Section 64 of The Planning Act.
DONE AND PASSED by the Council of the City of Brandon duly assembled this 3rd
day of March, A.D. 2025.
"J. Fawcett"
"R. Sigurdson"
MAYOR
CITY CLERK
Read a first time this
8th
day of
July
A.D. 2024
Read a second time this
4th
day of
November
A.D. 2024
Read a third time this
3rd
day of
February
A.D. 2025
I, Renee Sigurdson, City Clerk of the City of Brandon, DO HEREBY CERTIFY the above within to
be a true and correct copy of By-law No. 7392.
Original Signed by
R. Sigurdson
R. Sigurdson, City Clerk
City Plan
March 2025
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Land Acknowledgment
The City of Brandon is located on Treaty 2 land,
home of the Anishinaabe, Cree, and Dene Peoples,
the unceded territory of the Dakota, and the
homelands of the Red River Métis.
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Contents
Introduction.................................................. 1
Our Story.......................................................5
Our Vision................................................... 13
Healthy City................................................ 17
Moving City................................................. 31
Growing City............................................... 41
Urban Structure.........................................59
Implementation.........................................83
Definitions..................................................85
Part 1
Part 2
Part 3
Part 4
Part 5
Part 6
Part 7
Part 8
Part 9
Schedules
Appendices
Maps ............................................................90
Part 10
Introduction
Part 1
Purpose
This is Brandon's first City Plan - a unique and exciting
moment in our history to reflect on who we are and set
a course for who we want to be as a city and a regional
service hub, over the next 30 years. The City Plan strives to
reflect the diversity of voices in Brandon and encourages
us to continually reflect on where we are, where we are
going, and how we are going to get there. This plan is
achievable when our community comes together to
collaborate, celebrate, and care for one another to ensure
we are a growing, moving, and healthy prairie city for all.
The City of Brandon, like other cities across Canada, is
continually evolving, growing, and adapting. The next
30 years requires a plan to meet these changes head on.
Planning for our future includes making sure we take care of
all the elements that make up our city - our infrastructure,
services, amenities, housing, and our people. This will require
us to be empathetic, innovative, fiscally responsible, and
flexible, as we prudently address today's challenges and
think boldly about our future.
It will take the determination and cooperation of City
leadership, administration, community partners, and
residents to ensure we are achieving our goals. This involves
City Council and Administration making decisions, either
independently or through collaboration with community
partners, to affect growth and change. A long-term policy
direction is therefore necessary for the City to manage,
coordinate, and guide Brandon's physical, environmental,
economic, social, and cultural development.
1
City of Brandon
Governing Structure
The City of Brandon Development Plan ("City Plan") is a summary of the City's vision, goals,
and policies, prepared in accordance with the provisions of The Planning Act (C.C.S.M. c. P80)
and the Provincial Planning Regulation (MR 81/2011). The City of Brandon has relied on the
Brandon and Area Planning District Development Plan, the regional plan for Brandon and
surrounding municipalities since 2013 to guide growth and change. With the dissolution of
the Planning District in 2020, the City has the opportunity to develop an entirely new City
Plan tailored to our unique needs and circumstances.
Development Plans are high-level plans that present the long-term vision for the community.
They provide a framework consisting of strategic directions, objectives, and policies that
help the community achieve its goals and realize the vision for the City. Development Plans
address challenges such as housing, transportation, economic development, infrastructure,
and natural and social environments. The City Plan is supported by secondary plans that
provide additional policy direction for areas undergoing increased levels of growth and
change. Municipalities are required to develop and regularly update their Development Plans
under the Provincial Planning Act. The City will review the City Plan every ten years to ensure
it remains on track and relevant.
Implementation of the City Plan
occurs through master plans,
strategies and frameworks
supported by capital planning
to implement the overall
policy direction set forth in
the City Plan and secondary
plans. These master plans
include servicing, movement,
recreation, greenspace and
much more. Alignment of
implementation strategies with
the overall policy direction in
the City Plan and secondary
plans is key to ensure the
community is moving towards
achieving its policy vision. The
Council Strategic Plan is shorter
in duration (four years) and
establishes priorities that align
with the term of Council.
The figure to the right identifies
the planning hierarchy and how
the City Plan relates to other
planning and implementation
within this hierarchy.
Planning Act
Provincial legislation with
planning requirements
City Plan & Secondary Plans
Long Term Policy Direction
on Growth and Change
Council Strategic Plan
Identifies short term
priorities and focus for term
of Council
Standards
Standards (e.g. Zoning
By-law, City Standards,
Servicing By-laws) in
alignment with City
and secondary plan
policy direction
Master Plans
Implementation
master and capital
plans (e.g. servicing,
recreation, greenspace,
transportation) in
alignment with City
and secondary plan
policy direction
2
City Plan | Part 1
How to Read This Document
Urban Structure Areas
Strategic Intent
The strategic direction for how
the area is intended to function.
Policies
The individual actions that can
be taken to achieve the strategic
direction and overall intent of the Area.
Objectives
The strategic directions to
achieve the goal area.
Policies
The individual actions that
can be taken to achieve the
strategic direction and overall
goal area.
The City Plan is divided into four main sections:
-
Our Story - Who we are as a city today and the process taken to develop the City Plan.
-
Our Vision - Who we want to be in the next 30 years.
-
Our City - How we will achieve our vision by being a Healthy, Moving and Growing City.
-
Urban Structure - The physical elements of our city, how they work together, and
guidance for how to adapt and change to support our vision.
The key elements of this document include:
Goal Areas
The pillars of the plan that serve
as a foundation on which to
build specific policy direction.
3
City of Brandon
Our Story
Part 2
The City of Brandon is located on Treaty 2 land, the
unceded territory of the Dakota, and the homelands of
the Red River Métis Nation.
Prior to settlement, the area around Brandon was a frequent
bison hunting ground and settlement area used by the
Sioux, Bungay, Yellow Quills, and Bird Tails peoples. The area
was a network for Indigenous trading, which was challenged
by the influx of Voyageurs and settlers into what we know
today as Western Canada.
In the 1880's, the Grand Valley area (on the west side of
the Assiniboine River from where Brandon now sits) was
established in anticipation of being a likely route for the
transcontinental railway. In May of 1881, Brandon was chosen
as a railway division point for the Canadian Pacific Railway
and townsite, and within a year (May 30, 1882), the City of
Brandon was incorporated thanks to rapid settlement after
construction of the railway. Its initial population was 700, but
the city grew rapidly. By 1891, Brandon boasted nearly 4,000
citizens, and by 1906 it had surpassed 10,000 people.
Today, the City of Brandon is Manitoba's second largest city
and is a community of over 51,000 people, located in Western
Manitoba along the Assiniboine River. Brandon is a unique
and welcoming community having the services, amenities,
education, and employment opportunities of a metropolitan
city, with the benefit of a quieter, small-town feel. The city is
a regional service centre for over 190,000 people in an area
commonly known as Westman (Southwestern Manitoba).
5
City of Brandon
Community Profile
Population
Brandon is a growing city.
Between 1996 and 2021, Brandon grew
by 33% or almost 13,000 residents.
Population Change, City of Brandon
Growth Strategy, 1996-2021
Population Projections, Adapted from Brandon's Market Analysis & Development Forecast, 2022
Brandon is an increasingly
diverse community.
36.8 years old
is the average age of residents in the
community in 2021, and has stayed
relatively stable since 2001.
14%
of Brandon's population identify as
Indigenous, the majority being First
Nations or Red River Métis.
23%
of residents are immigrants.
0
10000
1996
2001
2006
2011
2016
2021
20000
30000
40000
50000
60000
2021
2026
2031
2036
2041
66000
64000
62000
60000
58000
56000
54000
52000
50000
48000
46000
51,310
61,188
60,446
Brandon's population is
expected to increase by
a range of 9,136 to 9,878
individuals in the next
20 years.
This represents a growth
of 17.8% to 19.3% over the
next 20 years.
6
City Plan | Part 2
In 2021, the unemployment rate was 4.7%.
By the end of 2021, over 83% of the
population had completed a level of
education of high school or above.
Income and Labour
$97,000
Average household income
in the community.
of households made
over $60,000 in 2021.
62%
Most common labour force
industries
Health Care
Retail
Manufacturing
Construction
Sales &
Service
Trades &
Transport
Education
Law &
Government
Most common labour force
occupations
7
City of Brandon
Housing Costs
Housing Construction
Community Housing
Housing Needs
Median rental
rates increased
by 15% ($808 to
$950) in 2021.
Since 2001, there have been 5,355
new dwelling units constructed.
Of those dwelling units:
16% of all renters are currently
in subsidized housing.
There are approximately
Since 2006,
average home
prices at the
point of sale
have increased
by 107%.
The median value of dwellings
in 2021 was $290,000,
increasing by nearly $30,000
between 2016 and 2021.
60
emergency shelter beds
2,201
transitional housing
units provided by
organizations outside
of Manitoba Housing
In 2023, there were 417 safe and
warm shelter users.
Single-unit dwellings are
projected to account for 26%
of all new units over the next
ten years.
Additional transitional housing units
are necessary to stabilize people
living in emergency situations and
the 863 clients receiving homeless
related services.
70+ People
experiencing homelessness require
emergency shelter space for support
Based on growth projections, an additional
will be in core housing need
by 2041
renters
300+
owners
60+
detached
dwellings
other forms (e.g.
apartment, row
house, duplex)
20%
80%
Housing Projections Adapted from Brandon's Housing Needs Report, 2023
8
City Plan | Part 2
The Process
The City Plan is a product of collaboration among residents, community partners,
administration, and elected officials. To ensure that a diversity of voices were heard, a variety
of public engagement techniques were used with over 10,000 project page views, over
21,000 visited social media platforms and over 80+ community meetings. The community
engagement process was conducted in the following phases:
Listen
& Learn
2022
Confirm
the Vision
January -
June 2023
Draft
the Plan
May -
December 2023
Share
the Vision
February -
March 2024
Finalize and
Adopt Plan
Spring 2024
9
City of Brandon
Listen & Learn
Confirm the Vision
Draft the Plan
Share the Vision
Finalize & Adopt Plan
The feedback gathered was summarized and shared with
the public through Mobile Open House (January - April
2023), Public Meetings and Community Workshops (May -
June 2023), and made available online for other viewers.
Several months were spent compiling feedback, meeting
with internal departments and drafting the plan.
The project started with some Initial Community
Engagement (February - June 2022) that was conducted
through surveys, meetings, an open house event, social
media, community meetings and other platforms to initiate
the discussion about the vision for the city. This was followed
by Community group engagement sessions (September
- December 2022) in which the City reached out to several
groups and released an invitation for interested parties to
meet and discuss the future of Brandon.
Once the draft plan was ready, it was shared with the public
for confirmation before the formal adoption process.
Following Public Hearing, the City Plan received Ministerial
approval and was adopted by Council on March 3, 2025.
Read more in Appendix B:
Public Engagement Report
10
City Plan | Part 2
The community engagement involved engaging with
various community groups with initial conversations
focusing on high-level vision statements and
desires for the city with workshops designed to gain
understanding of the implications of policies. To
ensure as many residents as possible participated in
the project, various engagement methods were used,
including surveys, open house events, workshops, a
kitchen table conversations toolkit, a project website,
stakeholder sessions, information at high traffic areas
in the city, social media notifications, a photo contest,
advertisements in the local papers and on the radio,
emails, and phone conversations.
As well, the City held various community group
meetings to understand existing challenges and
opportunities. There was specific effort into engaging
historically underrepresented groups such as youth,
immigrants, seniors, people of color, and other
marginalized groups.
11
City of Brandon
Part 3
Our Vision
The City Plan is the guiding document and the most important tool
to help us realize our vision. Each strategic direction, objective, and
policy recommendation in the City Plan represents an intentional
choice about where we want to see Brandon in the next 30 years and
how we will get there. The vision was formed in collaboration with the
community, Council, and administration, and shows what we want to
achieve.
13
City of Brandon
We are growing
We care about how we move through our city
We care about the
services we provide
We care about the health
and vitality of Brandon
The city continues to experience a steady growth of
about 1% every year. Some of the considerations that
come with city growth are neighbourhood planning
and design, infrastructure efficiency, economic diversity,
and waste management and diversion. We need to plan
neighbourhoods that support a variety of housing types,
households, incomes, and lifestyles, paired with community
services and amenities that are easy to access. With growth
comes increased economic opportunities for all residents.
Brandon will need to promote and accommodate additional
industry, institutional, and innovation uses to support a
strong local and regional business ecosystem.
With a growing and increasingly diverse community we need to plan and build our
city with transportation options that allow people of all walks of life to move within
our community in a fast, safe and efficient manner. This means increasing movement
options for all modes, including vehicles, bicycles, transit, and walking as we shift from a
primarily single choice (private vehicle city) to a multiple choice (prioritizing all modes of
transportation) community. Transitioning to a multiple-choice network will enable us to
create a more equitable, safe, healthy, and sustainable community to live in.
Our infrastructure and staff deliver
services that support the needs of
all residents. This includes but is not
limited to water and sewer treatment
plants and pipes, roads, sidewalks,
stormwater management, parks,
recreation centres, police, fire, and
transit. As a growing city, aging
infrastructure and increased climate
events put additional strain on our
infrastructure, there is an additional
risk to service reliability and safety. We
need to manage our growth in a way
that ensures we can meet and sustain
the expectations of all residents and
provide cost-effective and
equitable service to everyone.
This means providing access to health
and wellbeing infrastructure and
programming, and ensuring safety
and community supports for all
residents. Environmental resilience is
critical for how we build and manage
our infrastructure, protect our
greenspaces and water, and manage
our impact on our air and land.
14
City Plan | Part 3
G
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We care about transparency
and accountability
The following policies and
directives set out how
Brandon plans to grow, move
and be healthy.
We must continue to build and
strengthen relationships with
Indigenous Peoples and support
long-term, ongoing community
healing and support efforts.
We care about
one another
We strive to build trust with residents
and ensure they are appropriately
included in significant decision-
making opportunities. This includes
ongoing community engagement
to bring clarity to the City's plans
and policies through
clear and accessible
communication,
information sharing, and
feedback opportunities.
This means honouring the findings of the Truth and
Reconciliation Commission Calls to Action, the United
Nations Declaration on the Rights of Indigenous Peoples,
and the National Inquiry into Missing and Murdered
Indigenous Women and Girls' Calls for Justice.
We want to celebrate
our diversity and
ensure a community
of social and physical
inclusion, where equity
thrives regardless
of ability, income,
ethnicity, religion,
sexual orientation,
gender, or age.
15
City of Brandon
Part 4
Healthy City
Credit: Sandy Black
17
City of Brandon
The wellbeing and vitality of Brandon is rooted in a community
where we look after one another, where we care for our land,
air and water, where we find opportunities for our economy to
thrive, and where we continue to strengthen our relationships
through reconciliation.
- When challenges arise, we address them head on
through strong collaboration. We work together
to navigate pressing issues like the housing crisis,
climate change, social isolation, social equity,
health conditions, and addiction.
- We cherish our community spaces and places that
support our quality of life and social connections,
and we ensure we remain a livable community for
generations to come.
- We are the economic heart of the region and
the urban centre of Westman. We are rooted in a
history of agriculture and innovation, bolstered by
our access to rail, highways and an airport.
- We celebrate our history and our diversity and
continue to work in meaningful partnership
with the people who have stewarded our land
for generations.
To do this, we must serve the needs of
all residents by prioritizing the social,
environmental, and economic
health of the city.
The following policies and directives set
out how Brandon will be a Healthy City.
18
City Plan | Part 4
4.1 Social
Provide housing choices for all residents that
is safe, suitable, and accessible
a. Encourage the provision of adequate housing mix with varying styles, sizes and
densities, to meet the social, health, and economic well-being requirements of
current and future residents of different income, age, and abilities across the
housing continuum.
b. Update the Affordable Housing Strategy to continue to plan for and support the
establishment of housing types and tenures at all levels of the housing continuum to
meet community needs.
c. Ensure the provision of affordable and transitional housing near necessary services such
as transit, active transportation, community amenities, and recreation.
d. Promote and pilot innovative solutions for the provision of affordable and transitional
housing, such as land assembly, parking requirement reductions, density bonusing, and
fast-tracking of vacant building development.
e. Recognize that while senior governments play the primary role in fostering, funding,
and delivering affordable housing, the City may provide support through promoting
technical assistance, supportive regulations, partnerships, community consultation,
and project facilitation.
f. Explore partnership opportunities between the City, senior-level governments, housing
providers and agencies, private developers, Indigenous communities, as well as
community groups, to provide innovative affordable housing options.
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Homelessness
Emergency
Shelter
Transitional
Housing
Supportive
Housing
Community
Housing
Affordable
Housing
Market
Housing
The Housing Continuum
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City of Brandon
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Ensure all zoning
and design
regulations enable
housing choices
a. Ensure inclusionary zoning in all
neighbourhoods.
b. Promote the establishment of affordable
housing units and universally accessible
housing units be included as part of new
multi-unit developments.
c. Promote age-friendly and universally
accessible design that responds to the
needs of older individuals, seniors aging
in place, and people with disabilities,
such as detached secondary suites or
laneway housing.
d. Encourage age-friendly housing
development within walkable and
transit-accessible communities.
Support community
initiatives to
address health,
wellness and safety
a. Honour the lived experience and
contributions to community life of all
people, and encourage a local culture
of inclusion, listening, and respect.
b. Support the development of programs
that address mental health challenges in
collaboration with the Province and local
not-for-profit organizations.
c. Support efforts to achieve well-being
in all dimensions of health, including
physical activity and mental and
emotional wellness.
d. Support access to potable water, public
washrooms, and other essential services
in public spaces.
e. Encourage food security in all areas of
the city, with particular emphasis on
lower income areas and those areas
with higher proportions of less than
market housing.
3
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City Plan | Part 4
Ensure meaningful equity and reconciliation
through relationships and partnerships with
Indigenous communities
a. Acknowledge that Brandon is located on Treaty 2 land, the unceded territory of the
Dakota, and the homelands of the Red River Métis.
b. Commit to ongoing respectful government-to-government relationships with local
Indigenous communities that nurtures trust and resiliency.
c. Develop and deliver cultural competency training opportunities for City staff focused on
the history of Indigenous peoples.
d. Explore economic and housing partnerships with all Indigenous peoples.
e. Identify opportunities to conserve, revitalize, and honour Indigenous culture and heritage
under the guidance of community Elders or Knowledge Keepers.
f. Participate in efforts to address violence against Indigenous women and girls, and all
gender-based violence.
g. Develop opportunities for public education and storytelling on Indigenous peoples,
culture and history.
h. Address equity in delivery of programs, policy, processes, and services.
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City of Brandon
Ensure programming,
resources, and spaces are
accessible and inclusive for all
a. Continue to respond to the varied cultural wants of
Brandon's diverse population through programming,
services, and facilities, and collaboration with community
organizations servicing various cultural groups.
b. Establish equitable and universal access to community
facilities, events, and resources.
Build trust within the
community through
meaningful public engagement
and civic processes
a. Provide the public the opportunity to engage on change
processes that impact them including land use, capital,
process changes, and financial impacts.
b. Adopt a public engagement policy to provide clarity on
when and how public engagement processes occur.
c. Promote equity and provide opportunities for all
members of the public to participate in public
engagement processes.
d. Encourage relationships with community organizations
to explore partnership opportunities to achieve the
vision of this City Plan and inform the public on change
processes.
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City Plan | Part 4
Embrace,
encourage, and
promote a vibrant
and diverse arts
and culture scene
a. Promote place-making efforts
that incorporate local art, culture,
and heritage.
b. Partner with community groups and
other levels of government to provide
increased opportunities for tourism and
fostering a strong sense of community
including encouraging festivals, cultural
programming, events, arts facilities, and
promoting areas of historical interest.
c. Review, update and implement the
Culture Plan.
d. Encourage winter social activities
through arts, recreation, events, and
urban design.
a. Support the ongoing efforts of heritage
conservation through municipal heritage
by-laws and programs.
b. Where areas known or suspected to be
of archaeological or intangible cultural
heritage significance are proposed to be
developed or altered, arrangements will be
made by the development proponent for
the preservation or recovery of significant
information and artifacts in accordance with
the provisions of the Manitoba Heritage
Resources Act and in collaboration with the
Province.
c. Encourage the appropriate rehabilitation
and restoration of structures with cultural
or heritage significance, including public
art, sympathetic to the characteristics of
the original construction.
d. Protect or buffer heritage resources
from incompatible development or land
uses that may threaten their integrity
or operation. In accordance with the
provisions of the Manitoba Heritage
Resources Act and in collaboration with
the Province.
Evaluate, conserve,
and protect
Brandon's historic
places and cultural
resources
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City of Brandon
4.2 Environmental
Support climate change mitigation and adaptation
by reducing greenhouse gas emissions and
preparing for projected changes
a. Support the implementation of the Climate Change Action Plan and the seven "Big
Moves" outlined in the Plan:
i.
Become a carbon free corporation.
ii. Transition to renewable energy.
iii. Rethink transportation.
iv. Build resilient infrastructure.
v.
Conserve and protect nature.
vi. Prepare for emergencies.
vii. Consume and produce sustainably.
Protect Brandon's natural environment,
including air, water, and sensitive ecosystems
a. Under direction of provincial authorities, ensure development in ecologically sensitive
areas such as shorelines of the Assiniboine River, wetlands, and habitats of species at
risk (Map 1) does not create increased environmental risks and occurs in a manner that
complements and is not detrimental to natural features of these areas.
b. Encourage the retention and protection of ecologically sensitive lands in accordance with
Federal and Provincial protection acts.
c. Encourage development that works with existing topography and natural assets, and
reflects environmental standards, low impact, low energy and water consumption, and
construction waste.
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City Plan | Part 4
Map not to scale
Assiniboine River Floodway
Woodlands
Waterbodies (not exhaustive)
General Area of Species at Risk
Map 1. Sensitive Areas
d. Promote the provision and maintenance of a healthy urban forest and safeguard existing
woodlots, mature trees, and other ecological features during development, as per the
Tree Protection By-law.
e. Encourage the maintenance of surface-retaining vegetation cover along the river and
discourage activities that could lead to bank instability or erosion, such as excavation,
land clearing, cultivation, or excessive grazing.
f. Consider dedicating ecologically sensitive areas in proposed subdivisions or
developments as undevelopable public reserve lands, as per The Planning Act.
g. Direct development that emits smoke, dust, harmful vapours, or other airborne particles
to appropriate locations.
25
City of Brandon
Promote
collaborative
environmental
regulation and
protection
a. Work with applicable Federal or
Provincial Authority having jurisdiction
to ensure development has necessary
environmental licenses, where
applicable, or does not occur on sites
considered too hazardous, natural or
artificial, for development, or if there is
development proposed along or near
the Assiniboine River or a railway.
b. Where environmental assessments
or licensing apply, the City will work
with the Federal or Provincial Authority
having jurisdiction and developers to
ensure the proposed development
may occur without compromising
the environment or the health and
well-being of citizens of the city and
the surrounding region in accordance
with The Environment Act and other
applicable legislation and their
associated regulations.
c. Work with neighbouring municipalities
and organizations that cross municipal
jurisdictions to protect habitat
areas, sensitive areas, and water and
stormwater resources.
Protect valuable
water and
stormwater
resources
a. Strive to protect ground and
surface water.
b. Where developments may contaminate
waterways or groundwater sources,
require proponents to engage
appropriate experts and applicable
provincial authorities and, when deemed
necessary, to take measures to prevent
water contamination.
c. Protect watershed health and levels
through efficient and maintained
stormwater management and surface
drainage design.
d. Promote water conservation through
educational programs, incentives,
and regulations.
e. Promote green alternatives to sod/
lawns in yards, such as trees, gardens, or
planting of native grasses/species (e.g.
plants typically found in Prairie.)
f. Coordinate with the relevant Provincial
Authority to plan around existing natural
wetlands, especially in existing urban
areas.
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City Plan | Part 4
4.3 Economic
Demonstrate and prioritize
fiscal sustainability and
responsibility
a. Ensure that the City can fund existing and future service
commitments by developing and periodically updating
an asset management plan for long-term approach to
funding capital investments as growth occurs.
b. Work with senior-level governments to identify sources of
funding for infrastructure and other community needs.
c. Identify desired service levels and conduct ongoing
service level reviews to ensure the effectiveness and
efficiency of all City services.
Cultivate a thriving economy
that is developed sustainably
and equitably, improving
resident quality of life
a. Update the Economic Development Strategy every five
years to support, diversify, and encourage economic
growth in the city.
b. Welcome and facilitate the creation of First Nations
Development Areas in and adjacent to the city through
support of the Additions to Reserve process and
Municipal Development and Service Agreements.
c. Recognize the role that public amenities, programs and
services have in supporting economic development
d. Engage and collaborate with local organizations,
Indigenous communities, and regional municipalities to
provide economic opportunities of joint interest, cohesive
strategic planning, and regional development.
e. Continue to pursue opportunities to welcome
and support newcomers in collaboration with
community organizations.
f. Promote tourism opportunities and partnerships with
community and industry groups.
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Prioritize economic
development in key
employment areas
a. Promote economic development in
the region through expanding the
unique advantages of Brandon's
Employment Areas.
b. Maximize use of existing infrastructure
and servicing to prioritize economic
development within infill and
brownfield lots.
c. Encourage the redevelopment of vacant
or underutilized properties to support
increased commercial, residential, and
mixed-use development.
d. Develop and integrate technologies to
support efficient use of infrastructure,
and community access to information.
e. Promote Downtown as a primary
location for economic activity and
prioritize local and regional investment
to advance its status as an economic
driver for the City.
Provide
opportunities for
local business to
grow and thrive
a. Consider provision of programs, tools,
information, and incentives to support
local entrepreneurs to start or retain
businesses within Brandon.
b. Work with local industrial and
commercial parties of interest to support
new development opportunities, mixed-
use facilities, business retention and
expansion, and tourism opportunities.
c. Collaborate with local businesses and
organizations on people attraction and
retention strategies.
d. Create opportunities for residents to
participate in civic opportunities such as
advisory committees and stakeholder
groups and collaborate with industry
stakeholders to facilitate business
retention, expansion, and attraction.
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City Plan | Part 4
4.4 Public Safety
Prepare for Disasters
and Emergencies
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a. Prevent, mitigate, and respond to
environmentally harmful events to minimize
the impact to the community.
b. Establish and maintain and emergency
operations center.
c. Provide support locally, and, where and when required,
regionally, in times of emergency and disaster.
d. Partner with Brandon Emergency Support Team
(B.E.S.T.) members to continue to provide Emergency
Preparedness education to all residents based on current
and future risks.
e. Develop and maintain early warning systems to notify
and support residents respond to emergencies/disasters.
Credit: Ken Frazer
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City of Brandon
Credit: Sandy Black
Part 5
Moving City
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City of Brandon
The way we move through Brandon is rooted in a community
where we can easily connect to the places, people, services
and amenities we need, where we have the option to choose
from a variety of modes of travel and where we ensure all ages
and abilities can move efficiently and safely through the city.
- We like the streets, sidewalks,
paths, and bike routes we
travel on to be well designed
and connect us to the places
we are going.
- We value an efficient and
affordable transportation system
that provides a range of options
to get around or for movement.
- We value safety so that everyone
feels comfortable getting
around their community.
To do this, we must shift from a
single-choice to a multiple-choice
transportation system that serves all
residents and is coordinated, balanced,
connected, comfortable, and innovative.
The following policies and directives set
out how Brandon will be a Moving City.
Single Choice
Multiple Choice
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City Plan | Part 5
5.1 Balanced
Plan for a transportation
system that balances the
needs of all users
a. Conduct transportation planning to ensure equitable
movement options within the City.
b. Develop a Movement Plan / Strategy to establish a
framework for transportation planning for walking,
cycling, rolling, and driving. Plan should also include
strategic direction for public transit that is safe,
accessible, efficient, convenient, inclusive, cost-effective,
and user focused.
c. Support shared mobility options, such as bike
and car share.
d. Promote parking alternatives and exemptions that
consider the provision of bicycle parking and car share
parking, and proximity to transit.
Design streets that
accommodate all modes of
transportation
a. Consider all modes of transportation in City standards.
b. Adopt design standards for streets that accommodate
multimodal forms of transportation, and consult with
other levels of government for roadways under their
jurisdiction.
c. Promote all transportation facilities that follow universal
accessibility design standards.
d. Identify priority streets to integrate active
transportation facilities, such as multi-use paths and
on-street bike lanes.
e. All new developments should consider active
transportation facilities. Existing neighbourhoods should
be retrofitted with active transportation facilities.
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5.2 Coordinated
Ensure consideration
of land use and
urban form in all
transportation
planning
a. Determine timing, location, and design
of major transportation infrastructure
through concept planning that considers
current and long-term land use (e.g.
Growth Strategy).
b. Encourage a mix of land uses and higher
densities along Corridors (section 7.4) to
support provision of high quality, high-
frequency transit service.
c. Consider urban form (physical
characteristics, like built environment
and how people will use the spaces)when
planning and designing streets.
d. Design street networks in small blocks
to support connectivity, walkability,
and circulation even during phasing of
projects and development.
Integrate transit
planning with land
use planning
a. Prioritize transit routes along Corridors
(section 7.4), including arterial and
collector streets.
b. Locate new transit stops and routes
within walking distance of services and
amenities, with particular emphasis
on higher-density residential, mixed
use, Downtown, commercial areas,
Employment Areas, schools, seniors
housing and facilities, major institutions,
and greenspaces.
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City Plan | Part 5
Promote efficient, well-
designed and flexible parking
requirements
a. Consider parking maximums to reduce oversupply of on-
street and off-street parking spaces.
b. Review and explore reductions and removal of parking
minimums to promote efficient land use and other
movement forms.
c. Discourage development of surface parking areas where
frequently accessible public transit and safe active
transportation options are available.
d. Consider shared parking arrangements to discourage
the development of large surface parking lots.
e. Implement parking design guidelines for all
city development.
f. Ensure parking, loading, and service areas include
safe and efficient internal vehicular circulation and
appropriate traffic control measures to access sites.
g. Promote creative and alternative built-form solutions
that incorporate covered or decked parking options.
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Ensure safe and efficient highway planning
a. Limit development that may adversely affect the capability of a Provincial highway to
move traffic safely and efficiently.
b. Permit development in the vicinity of and along PTH No. 1 and No. 1A, PTH No. 10, and
the Eastern Access Route PTH No. 110, as defined in any functional design study or
other applicable studies, only if, after consultation with the Provincial authority having
jurisdiction, the development will not affect future improvements or the safe and efficient
operation of those routes.
c. Work with the Province to confirm the future long-term status of highways, along with
any associated studies, within city limits and in close proximity to the city to better plan
future development in the vicinity of and along such highways.
d. Not permit development that may negatively affect plans for road widening or expansion,
unless provisions are made to accommodate future widening or expansion.
e. Work with the Province to not permit development that may have a detrimental impact
on the operation, safety, function, or expansion of Provincial highways, unless appropriate
mitigating measures can be incorporated into the development.
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City Plan | Part 5
5.3 Connected
Promote an efficient,
well-connected, and fully
integrated street network
a. Plan for a network that supports all users and goods to
get around the city and between neighbourhoods.
b. Ensure the interconnectivity of streets, sidewalks, multi-
use paths, cycling paths and transit routes.
c. Integrate parking facilities with pedestrian, cycling, and
transit facilities including bike connectivity, linkages, and
provision of bike parking.
Support regional
transportation connectivity
a. Support the Province's recommendations to
accommodate regional, provincial and national traffic
flows around the city fringes, in General Urban Areas, and
areas under Provincial jurisdiction.
b. Ensure the movement of goods through and out of the
city with connections to regional routes.
c. Engage in regional transportation planning activities
and shared infrastructure investments with
neighbouring municipalities.
d. Coordinate with the Province and Keystone Planning
District on the development of regional cycling and
trail infrastructure.
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5.4 Comfortable
Prioritize safety of all
a. Adopt a Vision Zero Strategy and leadership task
force to prioritize safety improvements to our
movement networks including speed reductions
and traffic calming with the intent to reach and
maintain zero annual traffic fatalities and serious
injuries.
b. Prioritize the implementation of traffic calming
measures and reduced speed limits in school zones,
residential areas, playgrounds, Downtown, and other
areas with high pedestrian and cycling traffic.
c. Ensure that sidewalks take universal accessibility
into consideration on both sides of the street by
incorporating accessibility features such as curb ramps,
and tactile paving.
d. Incorporate street lighting that provides high visibility for
non-vehicle traffic, especially at conflict points such as
crosswalks and intersections.
e. Provide safe and legible crosswalks along known
pedestrian connections that clearly convey
crosswalk locations.
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City Plan | Part 5
Manage and maintain
transportation infrastructure to
prioritize comfort and safety
a. Ensure maintenance and replacement plans are in place
for all transportation infrastructure.
b. Allocate adequate funding and resources to ensure
that infrastructure is well-maintained and repaired in a
timely manner.
c. Sidewalks and active transportation infrastructure
should be well maintained and kept free of ice and snow
during the winter.
d. Maintain with the Province a system of truck routes at
appropriate locations to enable goods movement in the
city, and coordinate the proposal of new truck routes as
needed as the city grows.
e. Minimize traffic hazards and nuisance factors of noise
and dust in residential areas.
f. Ensure parking, loading, and service areas are highly
functional under all weather conditions and do not put
strain on the storm drainage system.
Ensure the provision of secure
and convenient amenities
a. Install benches, trees, signage, wayfinding, and other
pedestrian amenities.
b. Promote the provision of secure and convenient active
transportation amenities, such as bike racks, lockers, and
shower facilities in private and public buildings.
c. Ensure that all transit stops and stations are designed
using universal design principles and provide adequate
shelter, signage, wayfinding, and furnishings.
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5.5 Innovative
Incorporate natural systems into the
design of transportation infrastructure
a. Design streets that promote urban resilience and ecosystem health, such as capturing,
filtering, and infiltrating stormwater.
b. Incorporate greenery into streets to improve air quality, provide shade and beautification,
and provide additional natural features, especially where access to parks is limited.
c. Coordinate green infrastructure projects with other street design, renewal, and
replacement projects.
Respond to trends, innovations, evolving
modes of transportation
a. Encourage electric vehicle charging and parking infrastructure be distributed
throughout the city and coordinated across public and private properties.
b. Support the implementation of technologies to improve traffic management.
c. Support shared micro-mobility initiatives such as car sharing and e-bike share.
d. Periodically review and adjust Municipal Servicing Standards based on growth,
innovations in technology, and changes in public priorities.
e. Monitor movement by conducting regularly scheduled vehicle and non-
vehicle traffic counts to ensure that road capacity design and timing of capital
improvements can accommodate changes in traffic due to population growth,
increased density, and new development.
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City Plan | Part 5
Part 6
Growing City
Credit: Sandy Black
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City of Brandon
The City projects to have a population between 63,000 and 65,000
people by 2050. It is expected that this growth will occur in both
our established areas (areas already built up and served with
existing infrastructure) and emerging areas (areas generally at
the edge of the city requiring newer infrastructure). Growing in
both emerging and established areas enables opportunities for
increased types of both residential and employment uses to meet
market demands.
Over the past ten years, the City has been
a leader in growing our existing built-up
areas, seeing approximately 30% of all new
residential units constructed in established
areas and 70% in emerging areas. The City is
planning to continue this growth pattern as
we enable development within our existing
neighbourhoods with a focus on our busiest
streets and our Downtown, while facilitating
planned and orderly growth around the
edges of our community.
- We coordinate infrastructure and
land use to accommodate growth
in key areas of the city.
- We align planning and
construction of infrastructure with
the direction and speed of growth
to be efficient and cost-effective.
- We value collaborative planning
of fringe areas to allow for future
growth of the city.
- We ensure new developments
further our vision for growth for
the city through planning tools
and policies.
To do this, we must identify where, when,
and how we grow to plan improvements to
our infrastructure and services in alignment
with growth, which in turn ensures efficient
use of public infrastructure and funds.
Refer to Subsection 6.1(6) under this
Part.
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City Plan | Part 6
6.1 How We Grow
Projecting Growth
a. The City shall prepare growth projections
for the Emerging, Established and
Employment areas to coordinate the
alignment of infrastructure with the
direction and speed of growth.
b. The growth projections shall be used
as a baseline for the planning of core
infrastructure (e.g. water, wastewater,
drainage, transportation) and
community services (e.g. fire, police,
recreation, transit) to service growth.
c. The projections should be updated
annually to compare actual vs projected
growth with comprehensive reviews
completed every five years in alignment
with the federal census.
d. Development projections should be
responsive to market demands.
Planning Growth
a. Master plans, including servicing,
movement, greenspace/recreation
plans and supporting capital budgets
should be established and updated in
alignment with the direction and timing
of growth outlined in the City Plan and
the supporting projections.
b. The City shall plan capital infrastructure
in alignment with the growth
projections to accommodate 20 years of
growth in each Growth Area.
c. The City shall endeavor to "right
time" infrastructure planning and
investment to allow development to
proceed as per the capital plan for
growth.
d. The City should consider both the City
and industry's capacity to manage,
administer, and construct capital works
to support growth when determining
the capital plans to support growth.
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City of Brandon
Paying for Growth
a. The timing, direction, and phasing
of growth infrastructure should
consider borrowing costs, and ongoing
operating and lifecycle costs of
maintaining new infrastructure.
b. The City shall endeavor to achieve a
"growth pays for growth" model to
limit the financial impact of growth
infrastructure on existing tax and
rate payers.
c. Development Charges shall be reviewed
and updated periodically to align with
updated capital plans to support growth.
Servicing Growth
a. Development in Emerging and
Established Growth Areas should
connect to the public water and
wastewater service collection
systems as per Master Plans,
Municipal Servicing Standards, and
by-laws.
b. Development in the employment
Growth Area will be serviced with both
connections to the public water and
wastewater collection systems and
on-site systems as set forth in the East
Brandon Industrial Area Secondary Plan.
c. Developers may be required to oversize
infrastructure required to support City
growth and/or alleviate the existing
infrastructure network external to their
development area.
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City Plan | Part 6
Approving Growth
a. Prior to designating and/or considering new areas for
development, the following shall be considered:
i.
Alignment of location with all policies in City
Plan, master plans, or any other city planning
strategy framework or by-law.
ii. Servicing capacity should be confirmed, or
have upgrades planned to increase capacity to
accommodate the new development.
iii. Location of existing servicing corridors for water,
wastewater, drainage, utilities.
iv. Emergency services.
v.
Vehicle and active transportation connectivity to
surrounding areas.
vi. Surrounding land uses and amenities,
including industrial, schools, commercial
areas, parks, and greenspaces.
vii. Major highway or railway corridors and approval
of lands on side of corridors where majority of
development exists.
viii. Hazardous conditions, including
floodways, former landfill sites, severe
topography and riverbanks.
ix. Environmentally sensitive areas, including
wetlands, natural drainage channels and
endangered species.
x. Soil and groundwater conditions and
impacts on groundwater quality should be
suitable for development.
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City of Brandon
Determining Growth Areas
For the purposes of growth planning, the city is divided into three Growth Areas (Map 2):
Emerging: Lands located at the edge of the city that include new
development areas that may require improvements to network
infrastructure prior to development.
Established: Lands centrally located that are primarily fully
developed and that existing infrastructure networks can serve.
Employment: Lands located in the eastern portion of the city for
development as employment uses, predominantly industrial with a
variety of servicing options, including full service, partially serviced
and un-serviced lands.
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Map 2. Growth Areas
Map not to scale
Emerging Area - City
Urban Expansion Area 1 - 30-50 years
Urban Expansion Area 2 - 50+ years
Conceptual PTH 110 West
Employment Area
Intermunicipal Growth Corridor
Established Area
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City Plan | Part 6
6.2 Emerging Area Growth
The Emerging Area Growth Strategy (Appendix A) identifies population, residential and non-
residential projections, and land inventories for each Emerging Growth Area within the city.
The Emerging Area Growth Strategy anticipates the majority of Emerging Area Growth to
occur in the South Growth Area as enabled by the capital plans to support growth.
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Emerging Area Growth Policies
a. To grow the Emerging Growth Area in a financially
responsible manner, the City will prioritize infrastructure
improvements in the 20 year capital plan for growth
to service the south Growth Area with incremental
improvements planned for the north and west Growth
Areas as outlined in the Emerging Area Growth Strategy.
b. Proposed development in Emerging Areas without
existing or planned network infrastructure capacity may
be considered under the following:
i.
The developer is willing to front end the cost of
the infrastructure.
ii. The development of the area does not
infringe on buildout of other areas zoned or
planned for development.
iii. Ongoing operational and lifecycle costs of new
infrastructure is acceptable to the City.
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City of Brandon
c. Phasing of development within
Emerging Areas should occur
contiguous to existing developed areas
and connect directly to adjacent existing
transportation and servicing networks.
"Leapfrog" development may-be
considered pending additional servicing,
transportation, and financial analysis
acceptable to the City.
d. The City shall endeavor to maintain a 20
to 30 year supply of land that aligns with
the 20-year capital infrastructure plan for
growth.
e. The City will prepare and implement
secondary plans as a framework to guide
development in all Emerging Areas.
f. Secondary plans shall be prepared by the
City prior to development occurring in
accordance with the requirements of the
General Urban Area Policies section.
g. Developers will prepare neighbourhood
plans as outlined in secondary plans
to identify more detailed planning for
their lands within the secondary plan
area. Neighbourhoods plans shall be
consistent with the applicable secondary
plan and approved by resolution of
Council.
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City Plan | Part 6
6.3 Established Area Growth
The Established Area Growth Strategy will be completed in the future to support the growth
projections and the policy direction for growth as set forth in the City Plan. Established Area
Growth should occur throughout the city with emphasis on the Downtown, around major
institutions, along collector and arterial streets, and Corridors (section 7.4)
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Growth Policies
a. The City shall prepare an Established Area Growth Strategy and capital plan for growth to
support the policy direction in the City Plan and ensure areas planned for intensification
are supported by required infrastructure upgrades.
b. The City should plan to accommodate a minimum of 20% of all growth in the
established area, with a focus on intensifying the Downtown, around major institutions,
along arterial and collector streets, Corridors, and other areas and sites meeting the
criteria outlined in section 7.1.5.
c. The City will prepare and implement secondary plans as a framework to guide
development in Established Areas where substantial development and change
is anticipated, such as the Downtown, or areas that must transition, such as
through rezoning, to become generally consistent with the City Plan, such as the
Assiniboine Gardens area.
d. In addition to the requirements outlined in 7.1.5, secondary plans for Established Areas
should also identify areas for intensification/densification.
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6.4 Employment Area Growth
The East Brandon Industrial Area Secondary Plan (Schedule 5) provides growth management
direction for the Industrial lands, including full serviced, partially serviced and un-serviced
development nodes for industrial growth in the short, medium and long term.
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Area Growth Policies
a. The City shall support the establishment of First Nations Development Areas in the
city or within the Fringe Areas through the Federal Additions to Reserve process when
in alignment with the City Plan, the capital plan for growth, and other City by-laws,
standards and frameworks guiding development.
b. The City shall adopt a First Nation development and service sharing policy for land within
the city to provide clarity on the terms for these agreements.
6.5 First Nation Development Area Growth
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City Plan | Part 6
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6.6 Fringe Area Growth
The intent of the Fringe Area is to plan for lands outside the city limits (as identified in the
Keystone Planning District Development Plan). These lands include areas for potential future
urban expansions. Map 4 of the Keystone Planning District Development Plan identifies
Fringe Area lands both within the City of Brandon and within the Keystone Planning District.
The Fringe Area Growth policies:
- Identify land supply outside city limits for future urban development.
- Provide staged conversion of undeveloped land to urban uses.
- Prevent fragmentation and incompatible development of urban expansion lands as
urban development occurs.
- Minimize conflicts between urban and rural uses.
Fringe Area Growth Policies
Joint Planning
a. Both the City and the Keystone Planning District shall notify and consult with each other
for any future rural residential development, including farm related subdivision and
isolated rural residential lots, but excluding existing Rural Residential Areas designated
and subject to a secondary plan at the time of the adoption of the Keystone Planning
District's first Development Plan, and commercial and industrial development within the
Fringe Area.
b. Prior to any development or redesignation of land within the Fringe Area that is deemed
to significantly increase traffic or alter traffic use on the municipal roads in either
planning area, the City and the Keystone Planning District may recommend a Traffic
Impact Study completed by a qualified professional engineer to identify potential
infrastructure upgrade needs. Where new development is deemed by the TIS to require
road infrastructure upgrades, a cost sharing agreement may be required.
c. Where a large-scale development is proposed within the Fringe Area, the City or the
Keystone Planning District may recommend a secondary plan be prepared by the
proponent and adopted by the appropriate planning area prior to a zoning by-law
amendment or subdivision application enabling the first of such development after the
adoption of this City Plan.
d. Any conflicts or disagreements between the City and the Keystone Planning District
should be brought to the attention of the joint planning committee, the intermunicipal
group established to coordinate planning discussions between the City of Brandon and
the Keystone Planning District.
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City of Brandon
Compatibility
a. Within the Fringe Areas, development
approval decisions involving the re-
designation of lands, issuance of
development permits, approvals of
conditional use orders, or approvals of
subdivision applications, will, in addition
to the other policies of this Plan, take
the following into consideration:
i.
The compatibility of adjacent
land uses with urban
development (e.g. industrial uses
adjacent to existing and planned
residential uses).
ii. The impact of the existing
and future Provincial highway
system, particularly PTH No. 1,
PTH No. 10, and PTH No. 110.
iii. The integrity of agricultural
designated land parcels as large
land holdings to ensure no
significant impedance to any
future land assembly.
iv. The ability to service the areas
with appropriate infrastructure.
v.
The planning of development in
a manner that does not impede
the city's orderly expansion.
Land Uses
a. Existing land uses will continue
to operate in Fringe Areas
identified for urban expansion until
development occurs.
b. The establishment or expansion of
livestock operations shall be subject to
Provincial regulations, such as minimum
distance separation rules.
c. Fringe Areas planned for future urban
expansion should be left largely
undeveloped until development occurs
and remain generally in large parcels (80
acres) to support existing agricultural
uses until these lands are considered for
future urban uses.
Credit: Sandy Black
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City Plan | Part 6
6.7 Urban Expansion Area Growth
Urban Expansion
Area Growth Policies
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a. The existing and conceptual Provincial
highway extensions (PTH 110) to the
south of the city shall serve as the
planning boundary for future urban
development and urban expansions to
the south.
b. Urban expansion is planning for the
designation, servicing and development
of lands in the Fringe Area for future
urban uses. The Emerging Area Growth
Strategy and Map 2 identifies two
priority Urban Expansion Areas within
the Fringe Area.
c. Urban Expansion lands adjacent to the
south of the city are the highest priority
potential lands for urban expansion
as supported by new infrastructure
planned in the 20 year capital budget to
support growth.
d. Urban Expansion lands adjacent to the
west of the city have moderate potential
for urban expansion as development
would need to be accommodated
within the capacity of existing adjacent
infrastructure networks.
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City of Brandon
Land Supply
a. Urban expansion should be generally based on the
principle that the City requires a minimum 20- to 30-
year supply of designated land in secondary plans for
residential and non-residential uses as per the Emerging
Area Growth section.
b. Any urban expansion should be supported by analysis
demonstrating the ability for the lands to be serviced
within existing or planned infrastructure networks.
c. Urban expansions will be prioritized towards Urban
Expansion Areas adjacent to the south of the city,
but may occur in Urban Expansion Areas adjacent to
the west of the city if development is supported by
existing infrastructure networks.
Phasing
a. The phasing of Urban Expansion lands will be driven by
existing and planned servicing capacity.
b. Initial phasing could include lands with direct
connections to wastewater lift stations, including
lands to the south of the 34th Street lift station and
lands directly to the east of the 18th Street lift station.
c. Large scale regional retail will be prioritized to the east of
18th Street (PTH 10) as these are the only lands within the
Urban Expansion areas adjacent to the south of the city
that have direct frontage on the major arterial and lend
itself to accommodating this type of use.
d. Secondary phasing could include lands that currently
have no direct connection to the wastewater network
(i.e. require connection through lands within the city or
within initial phase.)
Annexation
a. Any annexation request should be undertaken in
collaboration with the impacted Rural Municipality and
in accordance with Provincial legislation.
b. Considering the length and complexities of an
annexation process, annexations should endeavor to
include a minimum additional 10 year land supply.
c. Larger annexation requests beyond the designated
land supply target in Appendix A may be considered if
supported by the impacted Rural Municipality.
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City Plan | Part 6
6.8 Intermunicipal Corridor Growth
Intermunicipal economic development corridors are identified on Map 2 and located along
major transportation corridors (e.g. Trans-Canada Highway and PTH 10 between Brandon
and the Municipal Airport).
Intermunicipal Corridor Growth Policies
1
a. Intermunicipal economic development corridors may provide the opportunity for
mutually beneficial industrial or employment uses that due to the location and/or size of
land holdings provide opportunities for development not available within city limits.
b. Pending the availability of servicing capacity, intermunicipal service sharing agreements
may be considered to facilitate the growth and development of intermunicipal economic
development corridors.
c. The City shall adopt an intermunicipal service sharing policy to provide clarity on the
terms for service sharing agreements for intermunicipal economic development corridors
and other Fringe Area lands not identified for urban expansion.
Credit: Sandy Black
55
City of Brandon
6.9 Infrastructure
The City has a responsibility to provide municipal infrastructure and services in an
efficient and cost effective manner. The City will adopt master plans to outline the plan for
infrastructure. Growth Strategy outlines where to support new development, the master
plans lay out the timing of new infrastructure to be constructed to support new growth.
Infrastructure includes sanitary wastewater collection and treatment, water treatment
and distribution, stormwater collection and storage, solid waste management and utilities
(provided by other parties) such as electricity, natural gas and telecommunications.
1
Infrastructure Policies
a. The City will undertake and implement comprehensive master plans for its infrastructure
and establish budget priorities that ensure servicing and maintenance levels.
b. Infrastructure and utilities shall be extended in a logical and economically practical
manner having regard to the available capacity and the growth management policies
of this Plan.
c. The City will undertake periodic reviews of its infrastructure governance documents to
ensure they accommodate sustainable land use and servicing practices.
d. The design of water, wastewater and stormwater systems in the city shall have regard for
long-term maintenance requirements and ease of future servicing and infrastructure
replacement.
e. Utility easements and rights-of-way should be located in a manner that respects the
natural environment, optimizes space utilization, and enhances the opportunity for the
rights-of-way to complement the open space system.
f. As much of the city was developed with limited stormwater retention, specific
consideration must be given to the increase in runoff from developments, including
consideration given to mitigating stormwater impact, including rain gardens, onsite
retention, permeable surfaces and decreasing lot coverage.
g. Infrastructure shall generally be located within the street rights-of-way, as per the City's
Municipal Servicing Standards.
h. The domestic sewer system shall be separate from the land drainage sewer system.
Storm water, surface drainage, roof run-off, weeping tile drains, sumps and other means
of controlling surface or sub-surface water shall not be directed to the domestic sewer
system. Existing combined sewer systems should be transitioned to separate domestic
sewer and land drainage sewer systems when opportunities arise, and/or funding is
available.
i.
Developers shall be responsible for developing on-site improvements, including, but not
limited to roadways, sidewalks, multi-use trails, greenspaces, storm water conveyance and
retention ponds, water and sewer mains, and lighting.
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City Plan | Part 6
j.
Residential and non-industrial development will be
planned for and occur in areas of the city in accordance
with existing and planned servicing (water, wastewater,
land drainage) upgrades.
k. Private servicing systems (e.g. bareland
condominium development, modular home park)
may connect to public systems in accordance with
City by-laws and Municipal Servicing Standards.
l.
Where the quality of wastewater from a use is
expected to generate challenges for wastewater
collection or treatment systems, an engineered
report may be required, along with specialized pre-
treatment requirements.
m. Industries with distinct requirements for water supply
and wastewater disposal, such as large volumes of
water or unique waste characteristics, may be allowed
to develop onsite water supply and wastewater
disposal systems, subject to any Provincial approval
that may be needed.
n. Development in all Growth Areas must consider
the impact on existing infrastructure systems and
be designed in compliance with master plans and
governance documents to manage post development
demands and discharges.
o. All development must accommodate either private
or public solid waste or recycling collection in
accordance with City by-laws and standards.
p. Development must plan for connections
to shallow utilities, including electrical and
telecommunications.
q. All development must consider emergency service and
sanitation access and circulation.
57
City of Brandon
Credit: Sandy Black
The way a city is structured contributes to
the quality of life of the residents. The desire
is for Brandon to continue transitioning
to densification of built-up areas, from
separation of uses to a mix of uses and from
one primary mode of transportation to a
multimodal transportation city.
Part 7
Urban Structure
This Urban Structure section provides overall guidance on general built form across the city,
ensuring development supports and complements the City Plan's vision.
59
City of Brandon
Brandon has a diversity of neighbourhoods providing various
living options for residents. As well, the city has a diversity
of recreational, industrial, commercial and institutional
development that support and contribute significantly to
the city's growth and livability. Strategic planning of the city's
urban structure can improve quality of life by retrofitting
existing neighbourhoods, designing new neighbourhoods
to accommodate all residents, and supporting economic
development.
The urban structure consists of General Urban Area,
Employment Area, Development Reserve, Corridors and the
Floodway (Map 3).
Map 3. Urban Structure
Map not to scale
General Urban
Employment
Floodway
Development Reserve
Commercial Corridor
Residential Corridor
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City Plan | Part 7
7.1 General Urban Area
The General Urban Area consists of neighbourhoods that
are diverse for several reasons, such as the age of the first
developments, the prevalent types and intensities of land
uses, and the presence of different neighbourhood- and
city-scale community amenities such as parks, schools, and
post-secondary education institutions.
This area also includes areas subject to secondary plans
such as the Downtown, Assiniboine Gardens, Southeast, and
Southwest areas (Map 4) that provide specific guidance on
development due to unique factors affecting development
in those areas.
The General Urban Area policies guide growth and change
that provides all residents with opportunities to live, move,
work, play, and shop.
General Urban Area Policies
1
a. The General Urban Area shall support existing and future
residential, commercial and institutional development in
the city.
b. Direct commercial development and growth that is in
line with the Downtown vision to the Downtown and
balance with other supporting uses.
c. Ensure land use planning minimizes the need
for new vehicle transportation infrastructure and
promotes greater use of public transportation and
active transportation.
d. Promote resident interactions and health, by including
amenities such as community gathering spaces, public
art, and play areas.
e. Incorporate existing natural features like
streams, wetlands, trees and natural topography
in all development.
f. Encourage winter city design through infrastructure
and urban design, such as maximizing sun exposure,
creating windbreaks, trees as shelterbelts, and provision
of snow storage.
Credit: Sandy Black
61
City of Brandon
General Urban Area - Downtown
2
Since the City's establishment, the Downtown has
been a hub of activity and mixed uses, reflected in the
higher concentration of early-city building stock and its
geographic position relative to a major railway line and
the rest of the city. However, a combination of continued
outward urban growth, a shifting market for commercial
goods, social challenges, and increased accommodation
of private vehicles have brought the need to plan for
change to accommodate our new Downtown reality.
Downtown General Policies
a. Reinforce Downtown as the central focus area for the
City and region.
b. The Downtown Area Secondary Plan (Schedule 2) shall
provide the policy framework for the future planning
and development of the Downtown.
c. Support collaboration with and between local and
regional interested parties to prioritize Downtown
economic development initiatives and partnerships.
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City Plan | Part 7
3
General Urban Area - Residential
Accommodating additional growth in a context-
sensitive manner is a good approach to densifying
existing residential neighbourhoods, and introducing
new housing opportunities would have a positive
impact on affordability. Additional density would also
support potential infrastructure upgrades and bring
different land uses and services into predominantly
single-unit residential neighbourhoods to create more
livable communities. Future residential neighbourhoods
will also need to be sustainable, well designed, and
pedestrian-oriented.
Residential General Policies
a. All residential development should be located within the
serviced General Urban Area except when associated
with institutional uses.
b. Encourage the provision of adequate housing mix with
varying types, sizes and densities, to meet the social,
health, and economic well-being requirements of
current and future residents of different income, age,
and abilities across the housing continuum.
c. Housing types should include secondary suites,
detached dwellings, supportive housing, two-unit
(semi-detached, duplex), three-unit, four-unit,
mobile homes, and multiple-unit dwellings such as
apartment buildings.
d. Promote residential neighbourhoods that are walkable,
bikeable, rollable, transit-oriented, and allow for the
necessary facilities to support all modes of transportation
(e.g. bike storage and other parking or loading facilities).
e. Encourage contextually sensitive infill that considers
building form, massing, and proximity to institutions and
community amenities.
f. Encourage local service uses such as daycares, places
of worship and assembly, libraries, small-scale retail
commercial, and community support services.
g. Support appropriately scaled home-based businesses.
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City of Brandon
Residential Development
a. Residential development should generally follow this typology:
Type
Examples
Height
Small Scale
Single-unit, two-unit (semi-detached,
duplex), secondary suites (attached,
detached), three-unit, four-unit
1-2 stories
Medium Scale
Townhouses (row or stacked), walk-up
apartments, low-rise apartments
2-4 stories
Large Scale
Mid-rise multi-unit apartments
4-8 stories
b. Large Scale housing should generally be located Downtown and where compatible with
adjacent land uses and sufficient water and wastewater capacity in the city networks.
c. Medium Scale housing should generally be located on arterial and collector streets
where compatible with adjacent land uses, on corner lots, and within walking distance
(approximately 400 m) to major institutions such as learning and healthcare institutions,
and near transit and community amenities.
d. Small Scale housing should generally be located along local and collector streets.
e. Prioritize intensification of residential development on Corridors (section 7.4).
f. Support development of an Established Area growth strategy to guide context-sensitive
infill development.
g. Encourage affordable and below-market housing to be located close to amenities,
schools, services, parks, and transit.
Credit: Sandy Black
64
City Plan | Part 7
4
General Urban Area -
Commercial and Institutional
Commercial and institutional development are integral to the city's economic
health. The City should promote economic development and prosperity, and support
development that meets the needs of the community, retains existing businesses, and
attracts new investment to the community.
Commercial and Institutional General Policies
a. Provide opportunities for a diversity of commercial and institutional activities in
appropriate locations throughout the General Urban Area.
b. Support both the city and broader region with commercial and institutional options for
residents of Brandon and the surrounding area.
c. Maximize commercial and institutional employment opportunities within walking
distances to residential neighbourhoods.
d. Commercial and institutional infill development should consider impacts on surrounding
residential development through consideration of the intensity of use, traffic impact,
location of parking, site access, exterior illumination, and additional landscape buffering.
e. Commercial activities and particular uses (e.g. drive-thru) that may generate higher
traffic volumes should be directed to Commercial Corridors (section 7.4).
f. Larger-scale developments and intensification may require additional studies,
such as traffic impact, concept plans/master plan/neighbourhood plan and market
analysis, as needed.
g. Consult with the local partners such as school divisions to determine the need for new
schools, associated sports fields, and day care facilities, as required, to serve the community.
Credit: Sandy Black
65
City of Brandon
Commercial Development
a. Commercial development should generally follow this typology:
Type
Priority
Mixed-Use Sites
Uses that meet residents' daily needs and serve multiple
neighbourhoods, including a mix of retail, services, office, and
small-scale institutional uses.
Highway
Commercial
Vehicle-oriented commercial uses that typically cater to the use
of the Provincial Trunk Highway network and serve the travelling
public and transportation industry, and uses that generate
significant volumes of traffic.
Large Scale
Commercial
Larger scale retail and commercial uses, such as developments
that cater to the travelling public (e.g. motels, restaurants,
service stations) and those types of commercial development
that require large properties for the display and/or storage of
merchandise (e.g. automotive dealerships).
Neighbourhood
Commercial
Small-scale retail uses and services that primarily serve the
local neighbourhood and meet residents' daily needs, such as
convenience stores and personal services.
Mixed-Use Sites
a. Mixed-Use Sites should accommodate a broad range of commercial and institutional
uses, along with, over the longer term, pedestrian-oriented activities such as specialty
retail, civic, arts and cultural uses, entertainment, professional services, and offices.
b. Mixed-Use Sites may be located at appropriate locations in Brandon, such as in the
vicinity of major institutions.
c. Mixed-Use Sites should be walkable by:
i.
Providing pathways and pedestrian connections throughout larger-scale
commercial areas.
ii. Promoting multimodal access along Corridors (section 7.4) provide clear
pedestrian linkages, and reduce barriers.
iii. Prioritizing wayfinding, lighting, and seating to improve pedestrian experiences.
iv. Encouraging uses that attract pedestrian activity.
d. Standalone residential development may be considered in Mixed-Use Sites if integrated
with other appropriate uses or subject to a site plan review.
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City Plan | Part 7
Highway Commercial
a. Development of lands along
and near major highways must
consider long-term needs of the
Province to fulfill its mandate of
enabling efficient and safe vehicular
movement of people and goods.
b. Development immediately adjacent
to the Trans-Canada Highway within
city limits will be limited to a mix of low
intensity commercial and industrial uses
that generate significant volumes of
traffic and traveling public uses.
c. The City will take into consideration
relevant studies from the Province when
reviewing development proposals within
such areas.
d. The City will work with the Province to
ensure development may occur without
compromising the safety of users and
traffic operations of the Provincial Trunk
Highway and Provincial Road network,
as well as future network requirements.
Large Scale Commercial
a. Direct auto-oriented commercial uses
(such as those that cater to the drive-
by or travelling customer, or require
outdoor storage or sales) to higher-
volume arterial streets.
b. Direct higher-density and intensity
large-scale commercial uses to
Commercial Corridors, in accordance
with section 7.4.
Neighbourhood Commercial
a. Commercial activities that may generate
higher traffic volumes should be
directed to Commercial Corridors.
b. The City may support conversion
of residences for small-scale
commercial use.
c. Prioritize neighbourhood commercial
development on corner lots.
Credit: Craig D
67
City of Brandon
Industrial Uses
a. Wherever possible, existing industrial uses and
developments located at inappropriate locations (such as
the Floodway or Downtown) should be relocated to more
suitable locations in the Employment Area.
b. Low intensity industrial uses having minimal nuisance
effects may be considered in parts of the city not within
the Employment Area. Uses such as manufacturing
goods produced for sale on the same site as an
associated commercial/retail use (e.g. bakeries) may be
located where commercial uses are supportable in the
General Urban Area.
c. New industrial developments not within the
Employment Area must be designed to:
i.
Ensure connectivity to transit and multiple
forms of transportation infrastructure including
sidewalk and pathway connectivity.
ii. Encourage a high standard of design along
major roads through buffering, landscaping,
fencing, and architectural elements and
minimizing visual impact of loading, storage,
and surface parking areas.
Credit: Sandy Black
68
City Plan | Part 7
Map not to scale
North Brandon Gateway
East Brandon
Industrial Area
Southwest
Brandon
Southeast
Brandon
Downtown
Brandon
Assiniboine
Gardens
General Urban Area - Secondary Plans
5
The city has several areas, mostly in the Emerging Area (Part 6), with opportunities for
significant development throughout the lifetime of this City Plan. These areas, however,
also face challenges to accommodate development, mostly due to infrastructure
limitations. Secondary plans for these areas will provide more area-specific policy
directions guiding development in these areas. Map 4 shows areas of the City subject to
secondary plans.
Map 4. Secondary Plan Areas
69
City of Brandon
Secondary Plan General Policies
a. All new areas of development are
required to set out the overall pattern for
future development.
b. At a minimum, secondary plans shall
address the following:
i.
Vision, objectives, and policies in
alignment with the City Plan.
ii. Site design considerations
including topography, connectivity,
accessibility, and environmental.
iii. Proposed land use
designations, including public/
school reserve areas.
iv. Conceptual layouts,
connections and phasing for
collector and arterial roadways,
active transportation routes,
pathway connections, and
transit routes/stops.
v.
Conceptual layouts, connections
and phasing for all primary servicing
including water, wastewater, and
land drainage systems.
vi. Greenspace and
recreation amenities.
vii. Supporting assessments and
studies including servicing
studies, traffic impact studies,
environmental assessments,
and heritage resource impact
assessments.
viii. Supporting projections for
population, density, employment,
and dwelling units by type.
c. Secondary plan policies intend to be
more specific to their respective areas
compared to, but still be generally
consistent with, this City Plan. Where a
policy in a secondary plan conflicts with
a policy in this City Plan, the policy in the
secondary plan will prevail.
d. The City may add more lands regulated
under a secondary plan, whether
by creating a new secondary plan
or expanding an existing one's area.
The City will update Map 4 without
going through a development plan
amendment process if Council adopts
a new or amended secondary plan in
accordance with the secondary plan
provisions of the Planning Act. The City
must go through a development plan
amendment process if Council considers
reduction or elimination of a secondary
plan area.
e. All secondary plans are attached
as appendices to the City Plan for
convenience. However, secondary
plans are not considered to be part of
a development plan, regulated instead
under the secondary plan provisions of
the Planning Act, including the process
of adopting secondary plans.
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City Plan | Part 7
General Urban Area -
Master Plans
6
Master Plan General Policies
a. Higher intensities may be considered for uses subject to master plans, and the uses
should be compatible if not complementary to surrounding uses when located in the
General Urban Area.
b. Master plans should indicate not only the proposed development on site at full build-out,
but also address potential impacts to nearby neighbourhoods, their contribution to make
nearby neighbourhoods more vibrant and complete, and high-level technical issues such
as servicing and traffic.
Keystone
The Keystone Centre is a unique facility in the city, providing spaces for both recreation and
events that attract large numbers of people.
a. The City will support initiatives that enable Keystone Centre to grow and develop in
accordance with a master plan the Keystone Centre may initiate in consultation with the
City.
b. The City may adopt a secondary plan for the area surrounding Keystone Centre to better
coordinate and integrate development and infrastructure investments.
Credit: Provincial Exhibition
71
City of Brandon
Brandon Regional Health Centre
Being the largest hospital in the Westman
Region, the Brandon Regional Health Centre,
also known as Brandon Hospital, is a major
medical facility that serves both the city and
the Westman Region. Its campus has grown
steadily over the years, providing specialist
medical services such as cancer care. The
facility is undergoing a significant expansion
as of 2023.
a. The City will support initiatives that
enable Brandon Regional Health Centre
to grow and develop in accordance with
a master plan Prairie Mountain Health
may initiate in consultation with the City.
b. The City may adopt a secondary plan for
the area surrounding Brandon Regional
Health Centre to better coordinate
and integrate development and
infrastructure investments.
Brandon Municipal Airport
Brandon Municipal Airport has its origins
from the Second World War and the British
Commonwealth Air Training Plan. The City
has been the stewards of the Airport lands
since 1946. In 2013 the Airport saw the return
of consistent regular passenger service
under a major airline. As of the drafting of
this Plan, the City was drafting a new master
plan for the airport.
a. All development in and around the
airport will be in accordance with the
Brandon Municipal Airport Master Plan
and subject to restrictions protecting
airport operations and airspace as set out
by Transport Canada.
b. The City will not support any residential
uses not associated with airport
activities in areas with a Noise Exposure
Forecast or Noise Exposure Projection
of at least 30.
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City Plan | Part 7
Assiniboine Community College
Assiniboine Community College is one of
two significant post-secondary educational
institutions in the city. It is unique in having
two campuses in the city known as the
Victoria Avenue East Campus and the North
Hill Campus, with the North Hill Campus
being the site of the former Brandon Mental
Health Centre. The North Hill Campus has a
master plan adopted in 2016, envisioning the
consolidation of all its functions in the city at
that site.
a. The City will support initiatives that
enable ACC to grow and develop
in accordance with the Assiniboine
Community College North Hill Campus
Master Plan, and any long term plans
the college may develop for the Victoria
Avenue East Campus.
Brandon University
Brandon University is one of two significant
post-secondary educational institutions
in the city. In 2017, Brandon University
commissioned a 30-year master plan that
Council subsequently adopted in support.
The campus is unique in that it covers
multiple blocks and straddles several
public streets, yet its built form differs
from the predominantly residential areas
surrounding it.
a. The City will support initiatives that
enable Brandon University to grow and
develop in accordance with the Brandon
University Campus Master Plan.
b. The City may adopt a secondary plan
for the area surrounding Brandon
University to better coordinate
and integrate development and
infrastructure investments.
Source: www.assiniboine.net
Credit: Sandy Black
73
City of Brandon
7.2 Employment
Area
The city's Employment Area, the location
of most of Brandon's Industrial land, is
an important contributor to Brandon's
economic sustainability. Maintaining a long-
term supply of marketable employment
land will support economic growth. As a
regional centre, the city is well-positioned to
maintain a strong employment land base by
retaining existing industries and businesses,
and supporting new growth.
The East Brandon Industrial Area Secondary
Plan (Schedule 5) shall provide the policy
framework for the future planning and
development of the majority of the
Employment Area in the city.
7.3 Floodway
The Assiniboine River is a significant
natural feature coursing through the city.
The river is an asset for the city, being
the community's source of potable water
and a natural and potential recreational
corridor within an urban area. The river
also poses a risk to the city due to the
potential for flooding. The City Plan
aims to protect the Assiniboine River
area and residents by assessing risk and
permitting predominantly low-density
development in city dike protected areas.
The Assiniboine Gardens Secondary Plan
provides direction for development in a
significant area of the floodplain in the
city, and the Assiniboine River Corridor
Master Plan provides guidance for
recreation around the floodway.
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City Plan | Part 7
1
Floodway Policies
a. Support the implementation of the Assiniboine Gardens Secondary Plan and the
Assiniboine River Corridor Master Plan.
b. The boundaries of the Floodway area shall coincide with the city's dike system. Where
there is no city dike system, the Floodway area shall include areas at risk of flooding
under applicable Provincial regulations or standards.
c.
Consider downstream impacts of diking and further strengthening of existing dikes as
necessary.
d. Support the natural and cultural conservation and rehabilitation of the Assiniboine River,
its riparian areas, and lands at risk of flooding within the Floodway Area.
e. Consider infrastructure developments in the Floodway Area involving flood protection or
services benefiting the community.
f.
Restrict development within the west side of the diked flood protection area to natural
space, public open space, recreation areas and sports fields.
g. Consider location and existing conditions elevation and (such as groundwater/drainage
issues) and approved visions for the area (such as Assiniboine Gardens Secondary Plan)
when reviewing development within the diked flood protection area.
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City of Brandon
7.4 Corridors
Corridors are major transportation and
movement routes that enable efficient
use of infrastructure and accommodate
a concentration and higher residential
densities and essential commercial uses in
the General Urban Area. Corridors should be
multi-use livable urban spaces that improve
connectivity and prioritize multimodal
access to main transportation routes and
services that residents may need such as
jobs, support and community services,
entertainment, and recreation.
1
Corridor General Policies
a. Support higher-density and intensity residential, commercial, institutional, cultural, and
recreational uses and developments relative to the General Urban Area.
b. Land uses should serve users of multimodal transportation options and residents of
adjacent neighbourhoods.
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City Plan | Part 7
2
Corridor Development
a. Corridors as shown on Map 3 should generally follow this typology:
Type
Examples
Uses
Residential
Corridors
Key collector streets, such as 10th
and 26th Streets, and Maryland
Park Avenues, which include higher
density residential development.
Predominantly
residential uses with
opportunities for stand
alone neighbourhood
commercial or
neighbourhood
commercial uses as
part of a mixed use
development.
Commercial
Corridors
Key arterial streets, such as 1st
and 18th Streets, and sections of
Victoria and Richmond Avenues,
which typically include commercial
development.
Predominantly
commercial uses
with the potential for
residential on the upper
storeys.
b. Additional streets could be deemed Corridors based on the following criteria:
i.
Moderate- to high-volume roadway.
ii. Transit route.
iii. Block pattern conducive for street-oriented development and higher-
density development.
iv. Built on existing concentrations of jobs/services/populations.
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City of Brandon
3
Corridor Design Considerations
a. Encourage small-scale, fine-grain, neighbourhood-scale
commercial developments.
b. Support the movement of people of all ages, abilities,
and levels of mobility by providing safe and universally
accessible facilities and design interventions such
as wider sidewalks, barrier-free building entrances,
pedestrian crossings, and signage.
c. Provide multimodal connections to the surrounding
streets and open spaces.
d. Contribute to a visually appealing, active and enjoyable
public realm through unique landscaping features,
lighting, signage, seating, public art, public open spaces
and four-season design elements.
e. Promote high-quality building design and materials.
f. Encourage minimum building setbacks and consistent
building alignments to create a strong street edge.
g. Generally limit direct vehicle access to developments
in the rear or side of a site, and accommodate parking
in the rear or side, below buildings, or screened from
street view.
h. Consideration should be given to the transition
from Corridors to existing adjacent lower-
density neighbourhoods.
i.
Larger-scale retail development adjacent to
arterial streets should occur in a cluster fashion
along Commercial Corridors.
j.
Promote visibility of commercial uses through
appropriate entrance features, signage, and
landscaping along Commercial Corridors.
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City Plan | Part 7
1
7.5 Greenspace and Recreation
Parks, recreation, and open spaces are essential public amenities to create livable, urban
communities. These community facilities create opportunities for safe physical activity,
social interaction, and places of rest and recreation that improve quality of life. The City has a
Greenspace Master Plan and a Recreation and Community Facilities Master Plan with details
about the City's vision for greenspace and recreation. As well, the City has an Assiniboine
River Corridor Master Plan to guide plans around the Assiniboine river corridor.
Greenspace and Recreation General Policies
a. Support the City's Greenspace Master
Plan and Recreation and Community
Facilities Master Plan to ensure Brandon
keeps the vision for recreation.
b. Recreational spaces and facilities should
provide opportunities for all residents in
promoting a higher quality of life.
c. Ensure neighbourhoods are connected
through shared greenspaces, open
space, naturalized areas, and recreational
areas to provide access for all residents.
d. Promote small recreation/green spaces
such as pocket parks, public patios, and
public art, on underused or vacant lots.
e. Support implementation of the
Assiniboine River Corridor Master Plan to
provide enhanced riverbank experience
and encourage connectivity north and
south of the river.
f. Collaborate with community
groups such as school divisions for
provision of educational spaces and
community opportunities.
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City of Brandon
Greenspace and Recreation
Design Considerations
2
3
a. Design safe, sustainable, public spaces that
maintain universal accessibility within and between
neighbourhoods and community facilities, such as parks
and recreational trails, ensuring safe routes for all modes
of movement and abilities.
b. Ensure all open spaces are publicly accessible by
multiple modes of transportation and multiple
access points, and within proximity to residential
and amenity rich areas, and Commercial and
Residential Corridors.
c. Encourage environmentally sensitive practices
such as native and seasonal planting, xeriscaping,
and rain gardens in the development of
greenspaces, and the avoidance of chemical
fertilizers and pesticides in maintenance.
d. Explore opportunities to create green spaces
that reduce the urban heat island effects.
Greenspace and
Recreation Dedication
a. Acquire land through land dedication or cash-in-lieu of
land dedication for subdivisions of all land use types and
for residential rezonings to support the development of
community recreational amenities and facilities.
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City Plan | Part 7
1
7.6 Development Reserve
Development Reserve lands are areas not serviced or planned to be serviced
in the time frame of the City Plan. These lands will be held idle until needed to
accommodate development.
Development Reserve General Policies
a. To ensure there is an abundance of land within the city boundaries to address any
fluctuation in supply and demand trends for the various land uses.
b. To protect these lands from premature fragmentation until a more intensive use has
been properly planned for development.
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City of Brandon
Part 8
Implementation
The City Plan document was formed by input from internal groups,
external agencies, government agencies and community groups. It
will take the joint efforts of all these parties to implement the vision
successfully. The completion of Brandon's City Plan document is only
the first step of implementing the City's long-term vision, objectives,
and policies. The next step is ensuring citywide alignment. Tracking
city-wide key indicators will allow the City of Brandon to document
community-wide changes, identify trends and priorities, and report
results in a consistent and transparent manner.
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City of Brandon
Implementation Policies
An Implementation Plan organized by the three themes of the plan with each of the
corresponding implementation actions will be used to track and communicate progress of
the City Plan. The implementation of the plan requires all departments to:
- Establish and report on key indicators, performance targets, and priority actions for each
policy area to report on quarterly/annually to Council.
- Increase awareness and understanding of City Plan intent and applicability to City
operations.
- Review existing and adopt new plans, policies, by-laws, and business plans that align
with the City Plan.
- Adjust service delivery methods, and operational and capital budgets to align with the
City Plan.
- Identify inter-jurisdictional, interdepartmental, agency and community partner roles and
responsibilities to determine the best solutions to achieve the goals.
Interpretation
- Words and expressions used in the City Plan have the meanings ascribed to them in The
Planning Act and the Provincial Land Use Policies, unless the context requires otherwise.
- Where there is development that does not currently comply with the long-range policies
reflected in the land use concepts, these areas may still be zoned in the Zoning By-law
according to their present use in order to avoid the creation of non-conforming uses,
provided that the overall intent of the plan is maintained. Zoning applied to a property
may conflict with the City Plan designation to accommodate existing uses until such
time as the property is redeveloped in alignment with the objectives and policies of the
City Plan. In these cases, subdivision and development proposals must be consistent
with City Plan policies. Zoning By-law boundaries may differ slightly from the City Plan;
however, in no case should the difference be contrary to the intent of the City Plan.
- Interpretation of the land use maps and policy intent of this City Plan is at the discretion
of the Director of Planning & Buildings or their designate.
- In cases where the word "may" is included in a policy, it is provided as a guideline or
suggestion toward implementing the intent of the policy.
- In cases where the word "should" is used in a policy, the policy is intended to apply to a
majority of situations. However, the policy may be deviated from in a specific situation
where the deviation is necessary to address unique circumstances that would otherwise
render compliance impractical or generate substantial hardship, and to allow an
acceptable alternate means to achieve the general intent of the policy.
- In cases where the words "shall" or "will" are included in a policy, the policy is considered
mandatory. However, where actual quantities or numerical standards are contained
within a mandatory policy, the quantities or standards may be deviated, provided that
the deviation is necessary to address unique circumstances that will otherwise render
compliance impractical or generate substantial hardship, and the intent of the policy is
still achieved.
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City Plan | Part 8
Part 9
Definitions
85
City of Brandon
Accessible - Designed in a manner that
allows ease of reach or ability to participate in
activity or opportunities, including access to
goods, services, buildings, places, and spaces.
Areas - Distinct parts of the City
distinguished by their unique physical
features and development patterns, as
identified in the Urban Structure.
Active Transportation - Any mode of
transportation by which people use their
own energy to power their motion including
walking, rolling, running, cycling, cross-
country skiing, skateboarding, snow-shoeing,
and use of a manual wheelchair.
Asset - Any resource, facility,
infrastructure, or property that is owned
by the City of Brandon.
Asset Management Plan - A planning tool
for managing existing and new municipal
assets in order to maximize benefits, reduce
risks, and provide satisfactory levels of service
to a community in a sustainable manner.
Barrier-Free - The ability for a person
with a disability to use a space, system,
or object without facing any physical,
attitudinal, information/communication, or
systemic barriers.
Built Environment - People-made places
and spaces designed and constructed
to serve their social, economic, and
environmental needs.
City - Where capitalized as the "City of
Brandon" or the "City", refers to the City of
Brandon as a municipal government, or
corporation. Where written in lower case
as "the city" or as "Brandon", refers to the
physical area of the municipality.
Corridors - Linear areas that connect
neighbourhoods, transport people, goods,
and services, and contain a mix of street-
oriented uses that incorporate retail,
employment, and residential uses, developed
at overall greater densities, as identified in
the Urban Structure.
Density - Population density is a
measurement of population per unit area.
Developer - The individual or group
undertaking an activity defined as
development herein.
Development - The construction of a
building on, over, or under land; a change
in the use or intensity of use of a building
or land; the removal of soil or vegetation
from land; and the depositing or
stockpiling of soil or material on land and
the excavation of land.
Drinking Water System - A system used to
pump, store, treat, and distribute drinking
water, and includes the facilities and services
used in the provision of drinking water.
Erosion - Land that, within a 50-year period,
may be eroded away or become unstable
due to the action of water contained in an
adjacent water body.
Flood Mitigation - Measures taken to
permanently protect individual buildings or
other developments from flood damage.
Floodway - The portion of a flood risk area
where flood waters are the deepest, fastest,
and most destructive.
Hazard Lands - Lands subject to flooding,
ponding, erosion, bank instability, flowing
wells, high susceptibility to groundwater
pollution, and poor subsoil characteristics for
building purposes.
Hazardous Uses - Facilities or development,
exclusive of railways and highways, that
manufacture, handle, store, or distribute
hazardous materials.
Heritage Resource - Heritage sites, heritage
objects, and work or assembly of works of
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City Plan | Part 9
nature or of human endeavour that is of
value for its archaeological, palaeontological,
pre- historic, historic, cultural, natural,
scientific, or aesthetic features, and may
be in the form of sites or objects of a
combination thereof.
Heritage Object - As defined in Part IV of
The Heritage Resources Act (1986). Objects
can include archaeological, heritage,
paleontological, natural heritage and
designated objects.
Heritage Site - A site designated as a
heritage site under Part I of The Heritage
Resources Act (1986). Important features of
(a) the historic or pre-historic development of
the province or a specific locality within the
province, or of the peoples of the province
or locality and their respective cultures; or
(b) the natural history of the province of a
specific locality within the province; may be
designated a heritage site by the minister.
Higher Density Residential - Development
that includes medium scale and large
scale housing development types such as
townhouses (row or stacked), four-plexes,
walk-up apartments, low-rise apartments,
and mid-rise multi-unit apartments.
Infill - The development of vacant parcels
within previously built areas. These areas are
usually already serviced by existing public
infrastructure, such as transportation, water,
wastewater, and other utilities.
Infrastructure - The physical assets
developed and used to support the city's
people and activities. The City's infrastructure
inventory includes such assets as drainage,
roads and right-of-way infrastructure, parks
and green spaces, buildings, fleet vehicles,
transit facilities, buildings, traffic control
devices, recreation facilities, computer
networks, library, etc.
Intensification - The development of
a property, site, or area in an existing
neighbourhood at a higher density than
currently exists. Intensification can be
achieved through redevelopment, infill,
development of vacant/underutilized lots, or
through the conversion of existing buildings.
Livestock Operation - A permanent or semi-
permanent facility or non-grazing area where
livestock is kept or raised either indoors or
outdoors, and includes all associated manure
collection facilities.
Lower Density Residential - Residential
development that includes small scale and
some medium scale housing development
types such as single-unit, two-unit (semi-
detached, duplex), secondary suites
(attached, detached), townhouses (row or
stacked), four-plexes, walk-up apartments,
and low-rise apartments.
Massing - The way in which a building's
gross cubic volume is distributed upon
the site, which parts are higher, lower,
wider, or narrower.
Medium Density Residential -
Residential development that includes
medium scale housing development
types such as townhouses (row
or stacked), four-plexes, walk-up
apartments, and low-rise apartments.
Micro Mobility - A range of small, lightweight
devices operating at speeds typically below
25 km/h (15mph) and is ideal for trips up to
10km. Includes electric scooters, e-bikes, and
similar options.
Mixed-Use Building - A building that can
include residential, commercial, cultural, and
institutional uses.
Mixed-Use Sites - An urban area that can
include residential, commercial, cultural,
and institutional uses, and where those
functions are to some degree physically and
functionally integrated.
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City of Brandon
Municipal Servicing Standards - Standards
that are intended to provide specific
guidelines to assist the City and developers
in the design, preparation, and submission of
plans and specifications for construction of
municipal improvements and systems (e.g.
roadways, water distribution systems, sewer
systems, storm water facilities).
Natural Assets - Parts of the natural
environment, such as the river, creeks,
and urban forest, that contribute to the
provision of one or more engineered
municipal services. (e.g. fresh water provision,
stormwater management, flood mitigation)
Open Space - An area of outdoor land
or water that is publicly owned or
publicly accessible, including municipal
parks, civic spaces, provincial or federal
parkland, institutional campuses, and
other public spaces.
Park - Any land acquired, developed, or
used by the City as a public park, sports
field, playground, recreational area, or
cemetery, title to which is vested in the
name of the City.
Placemaking - Involves the planning,
design, management, and programming
of shared use spaces to help define a
community's cultural, economic, social, and
ecological identity.
Redevelopment - The creation of new units,
uses or lots on previously developed land in
existing neighbourhoods.
Renewable Energy - Energy that is collected
from renewable resources, which are
naturally replenished on a human timescale,
such as sunlight, wind, rain, watercourse, and
geothermal heat.
Safe & Warm - Emergency shelter
designated for adults (18+) who experience
occasional homelessness.
Scale - The height, width, and length of a
building in relation to its surroundings.
Secondary Plan - A statutory plan as defined
by the Planning Act that directs the future
land use patterns, transportation and utility
networks, and sequence of development in
specific areas of a community.
Setback - The distance between a building
or development and a property line.
Site - An area, place, parcel of land, building,
structure, or an exterior or interior portion or
segment of a building or structure, whether
it is privately owned, owned by the City or
owned by the Crown or an agency thereof.
Streetscape - All the elements that make
up the physical environment of a street and
define its character. This includes paving,
trees and vegetation, lighting, building type
and style, setback, pedestrian, cycle and
transit amenities, street furniture, etc.
Sustainability - An approach that focuses
on meeting the needs of the present
without compromising the ability of future
generations to meet their needs. It is
composed of the three pillars of economic,
environmental, and social.
Traffic Calming - The process and measures
applied to address concerns about the
speeding behaviour of motor vehicle drivers
traveling on streets.
Universal Design and Accessibility - The
design and composition of an environment
so that it can be accessed, understood, and
used to the greatest extent possible by all
people regardless of their age, size, ability,
or disability.
Urban Forest - The trees located within
city limits, whether planted or naturally
occurring. All trees found in a city, whether in
parks, roadways, natural areas, or on private
property are part of the urban forest.
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City Plan | Part 9
Urban Form - Physical patterns and
structural elements that define a cityscape,
such as size, shapes, and configuration
of buildings, open spaces, corridors, and
facilities. Features can include materials and
facades or housing types, layout, and density.
Urban Reserve - Expansions to reserve lands
undertaken by recognized First Nations,
typically within an urban area.
Vision Zero - A traffic safety approach
and strategy to eliminate traffic fatalities
and serious injuries.
Visitable Housing - Accessible design
that allows social visits by people using a
mobility device.
Walkability - The extent to which the
built environment allows people to
walk to get to everyday destinations.
Walkability can be affected by
street connectivity, mix of land
uses, destinations, and pedestrian
infrastructure.
Wastewater Management System - A
system that is used to collect, store, treat,
and dispose of wastewater, and includes the
facilities and services associated with the
management of wastewater.
Watershed - A land area that channels
rainfall and snow melt to creeks, streams,
and rivers.
Zero Emission Vehicle - Battery electric
vehicles (BEV) or plug-in hybrid electric
vehicles (PHEV) that have the potential to
produce no tailpipe emissions.
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City of Brandon
Part 10
Maps
90
City of Brandon
Map not to scale
Assiniboine River Floodway
Woodlands
Waterbodies (not exhaustive)
General Area of Species at Risk
Map 1. Sensitive Areas
Map 2. Growth Areas
Map not to scale
General Urban
Employment
Floodway
Development Reserve
Commercial Corridor
Residential Corridor
Map 3. Urban Structure
Map not to scale
North Brandon Gateway
East Brandon
Industrial Area
Southwest
Brandon
Southeast
Brandon
Downtown
Brandon
Assiniboine
Gardens
Map 4. Secondary Plan Areas
Schedule 1
Downtown Brandon
Secondary Plan
Schedule 2
North Brandon Gateway
Secondary Plan
Schedule 3
Southwest Brandon
Secondary Plan
Schedule 4
East Brandon Industrial Area
Secondary Plan
Schedule 5
Assiniboine Gardens
Secondary Plan
Schedule 6
Southeast Brandon
Secondary Plan
Appendix A
Emerging Area
Growth Strategy
City Plan Appendix A
Emerging Area Growth Strategy
Prepared By: City of Brandon Planning & Buildings Department
October 2023
Table of Contents
Introduction .................................................................................................................................... 1
Recent Historical Growth ............................................................................................................ 2
Purpose ........................................................................................................................................... 3
Review and Update ......................................................................................................................... 5
Inventory ......................................................................................................................................... 5
Projections ...................................................................................................................................... 8
Growth Distribution ........................................................................................................................ 9
List of Tables, Figures, and Maps
Table 1: Emerging Area Development Inventory ........................................................................... 6
Table 2: Growth Demand ................................................................................................................ 8
Table 3: Emerging Area Growth Strategy ..................................................................................... 10
Figure 1: Growth Planning Framework ........................................................................................... 3
Figure 2: Emerging Sub-Growth Areas ............................................................................................ 5
Map 1: Growth Areas ...................................................................................................................... 2
Map 2: Emerging Growth Sub-Areas .............................................................................................. 7
1 | P a g e
Introduction
The City of Brandon ("City") Emerging Area Growth Strategy identifies where and when growth
will occur in alignment with the City Plan growth management policies and capital
infrastructure planning. The evaluation of the City's growth direction builds on previous work,
including the Brandon and Area Planning District Fringe Area Growth Strategy (2013) and the
Development Charges Capital Plan for Growth (2018). The Reserve Fund Management Policy
(2020) reflects these decisions by stating that "growth infrastructure investment shall be
prioritized to service development in the south growth area, and that investment should be
staged to minimize debt costs to the City."
The growth strategy identifies three Growth Areas (Established, Emerging and Industrial) as
shown on Map 1. The Established and Emerging Areas will develop primarily for residential and
non-residential (commercial and institutional) uses, with the majority of industrial uses to be
located in the Industrial Growth Area/East Brandon Industrial Secondary Plan Area in the
eastern portion of the City:
Established: Lands centrally located that are primarily fully developed and serviced by existing
infrastructure networks. In the Growth Strategy, "infill" will refer to development within the
Established Area, which includes redevelopment, development of underutilized lots, and the
conversion of existing buildings, or land between buildings in already-serviced areas.
Emerging: Lands located at the edge of the City that include new development areas that may
require improvements to network infrastructure prior to development. Growth in Emerging
Areas may occur in greenfield (undeveloped areas without services) and infill areas (with
existing services as defined under "Established").
Industrial: Lands located in the East Brandon Industrial Area Secondary Plan area, portions of
which have full or partial services, and others that are neither serviced nor planned to be
serviced. The East Brandon Industrial Area Secondary Plan has more information on the
Industrial Growth Area.
This Emerging Area Growth Strategy focuses on growth in the Emerging Area, with some
references to the Established Area. The City will develop a growth strategy specifically for the
Established Area. The East Brandon Industrial Area Secondary Plan already covers industrial
growth.
2 | P a g e
Map 1: Growth Areas
Recent Historical Growth
From 2012 to 2021, the City grew from a population of 46,060 to 51,313, an increase of 5,253
total residents (Statistics Canada data), equaling approximately a 1% annual growth rate.
Supporting the growth has been the construction of 2,929 total residential dwelling units, 26%
of them in the Established Area, and 74% in the Emerging Area. Of the 2,160 total dwelling
units constructed in the Emerging Area, 730 (34%) were single detached dwellings, mobile
homes, and ready-to-move homes, and 1,434 (66%) were forms of multiple housing, including
two unit, row housing, and multi-storey apartment buildings.
3 | P a g e
Purpose
The Emerging Area Growth Strategy provides statistical direction on where and when Emerging
Area growth will occur pursuant to City Plan growth management policies. Identifying the
direction and speed of growth allows the City to plan improvements to our assets and services
in alignment with growth. The focus of the growth strategy is to coordinate the alignment of
core infrastructure (water, wastewater, drainage, transportation) with the direction and speed
of growth while recognizing that all City services (recreation, transit, solid waste, fire, police,
etc.) must plan for growth.
The growth strategy provides statistical inputs for city-wide and area specific infrastructure
modeling and analysis to plan our infrastructure networks to accommodate growth.
Figure 1: Growth Planning Framework
City Plan
Policy direction on where, when
how, and why the City will grow.
Growth Strategy
Statistical analysis to support policy
direction set forth in City Plan.
Master Plans
Identifies capital improvements
required for the City to grow.
Capital Plans
Prioritizes capital improvements
required for the City to grow.
Development Charges
Revenue collection method to fund
capital improvements for City to grow.
4 | P a g e
This document will lay out three key components to the growth strategy:
Inventory - How many residential units and how much commercial/non-residential land the
City can accommodate. This is including serviced and unserviced land. This potentially allows
the City to understand at what point more land through such methods as annexation may be
required for further growth.
Projections - How much residential and commercial/non-residential development is expected
over the next 30 years overall and within the sub-growth areas. Ideally, these numbers will fall
within the inventory, an indication otherwise meaning the City may require more land
Growth distribution - How much of this predicted growth will occur in the sub-growth areas of
the City (direction of growth) and when this growth is expected (speed of growth). These
numbers will inform infrastructure planning.
5 | P a g e
Review and Update
Annually
- Planning & Buildings to update projected and actual data spreadsheets for both
residential and non-residential development using actuals (permits issued)
- Planning & Buildings to prepare annual report for Council and interested parties on the
amount and location of development relative to the City Plan policy vision
- Engineering to ensure the timing of improvements in the capital plan for growth align
with the location and speed of development
- Engineering to update development charge rates in accordance with the consumer price
index
Five Years
- Planning & Buildings to review previous growth projections relative to federal census
data
- Planning & Buildings to coordinate updates to residential and non-residential growth
projections using new census data as a baseline
- Planning & Buildings to review and update this growth strategy
- Engineering to review and update infrastructure master plans and capital plan for
growth relative to projections and updated growth strategy
- Engineering to review and update development charge rates in accordance with
updated capital plan for growth
The growth strategy provides statistical analysis to support capital infrastructure planning. Any
change to the vision for Emerging Area growth in the City Plan will require amendments to the
growth strategy, infrastructure master plans, and updated financial analysis, including impacts
on tax rates, utility rates, and development charge rates for City Council's review and
consideration. As the growth strategy is supporting background information for the City Plan,
changes and updates may be made by Development Services staff as needed.
Inventory
The emerging growth area inventory includes five sub-growth areas as shown on Map 2.
Figure 2: Emerging Sub-Growth Areas
6 | P a g e
The Emerging Area development inventory spreadsheet includes residential and non-residential
development estimates for each of the sub-growth areas. The development inventory relied on
the most detailed information (e.g. secondary plan, neighborhood plan, and subdivisions)
available at the time of preparing this strategy. For areas where more detailed planning (e.g.
secondary/neighborhood plan) was incomplete, residential density projection used an
assumption of 20 units per gross hectare.
The development inventory in Table 2 provides a summary for both residential (dwelling units)
and non-residential (sq. ft.) development for each emerging growth sub-area.
Table 1: Emerging Area Development Inventory
Sub-Growth Area
Residential (Dwelling Units)
Non-Residential (Sq. Ft)
North
2,700
1,200,000
7 | P a g e
West
1,000
230,000
Southwest
3,300
730,000
Southeast
1,800
60,000
Totals
8,900
2,220,000
8 | P a g e
Projections
Praxis Consulting Ltd. completed residential (units) and non-residential (ha) projections for a
base case and high-growth scenarios for a 30-year period included as Attachment X to the City
Plan. The Praxis study also outlines assumptions for the projections. The growth strategy in turn
uses the base case scenario for all projections (demand) calculations.
The City determined the non-residential (ha) projection for the Emerging and Established Areas
through a ratio for each non-residential use type that identified the percentage of the use
anticipated to occur in the Established and Emerging Areas. These calculations determined that
54% of non-residential land demand (67 ha) would occur in the Established and Emerging
Areas.
The base case scenario projects that the City could grow to a population of 62,328 residents by
the year 2051 (30-year growth), an increase of 10,443 residents. The projected population
increase should in turn mean the construction of 7,636 new dwelling units and 2,516,967 sq. ft.
of non-residential development within the Established and Emerging Areas. Table 1 below
provides a summary of the projections through five-year growth periods.
Table 2: Growth Demand
Growth Threshold
Total Residential (Units)
Total Non-Residential (Sq. Ft)*
5 Year Total: 2022 - 2025
1,201
418,312
5 Year Total: 2026 - 2031
1,237
423,944
5 Year Total: 2032 - 2036
1,267
422,987
5 Year Total: 2037 - 2041
1,293
418,414
5 Year Total: 2042 - 2046
1,312
419,259
5 Year Total: 2047 - 2051
1,326
414,052
30 Year Total
7,636
2,516,967
*Floor area calculated using an assumed lot coverage of 35%.
9 | P a g e
Growth Distribution
The growth strategy includes the following assumptions for residential and non-residential
growth over the next 30 years:
Residential
- 20% to 30% of the total residential dwelling units (approximately 1,500 to 1,800 units)
will occur within the Established Area
- 70% to 80% of the total residential dwelling units (approximately 5,300 to 6,100) of the
total growth will occur in the Emerging Area
The growth assumption considers that historical growth (26% established, 74% emerging) will
largely continue. From discussions with the development industry, the amount of available land
for redevelopment and infill is decreasing as land, demolition, and other redevelopment related
costs continue to rise.
The City Plan prioritizes growth of the Established Area, and the City will explore future
policy/standard changes to provide flexibility to facilitate development. The City Plan also
identifies Corridor intensification (e.g. Victoria, 1st Street) as a priority. The projection considers
that any reduction of lower density neighborhood infill will be offset by higher density scale
Corridor and downtown intensification.
Non-Residential
- 10% to 20% of the total non-residential building floor area (approximately 250,000 to
500,000 sq. ft.) will occur within the Established Area
- 80% to 90% of the total non-residential building floor area (approximately 2,000,000 to
2,250,000 sq. ft.) will occur within the Emerging Area
The growth assumption considers that there is less land availability in the Established area for
non-residential infill compared to residential. Current non-residential vacancy rates suggest
that accommodating much of commercial demand within the Established Area will be through
occupying existing vacant spaces rather than new construction.
Table 3: Emerging Area Growth Strategy provides a summary for both residential (dwelling
units) and non-residential (sq. ft.) development projected for each Emerging Area sub-growth
area over the next 30 years. City staff will update the supporting growth strategy spreadsheets
annually to identify growth for each sub-area over five-year increments.
10 | P a g e
Table 3: Emerging Area Growth Strategy
Sub-Growth
Area
Residential
(Dwelling Units)
% of Total
Non-Residential (Sq. Ft.)
% of Total
North
900 to 1,500
15% to 25%
640,000 to 850,000
30% to 40%
West
300 to 900
5% to 15%
110,000 to 320,000
5% to 15%
Southwest
3,000 to 3,700
50% to 60%
1,050,000 to 1,300,000
50% to 60%
Southeast
900 to 1,500
15% to 25%
110,000 to 320,000
5% to 15%
The capital infrastructure budget for growth will drive development potential for each sub-
growth area. Infrastructure modeling and capital planning for wastewater, water, land
drainage, and transportation infrastructure are included within their respective master plans,
and should align with the direction and speed of growth as identified within the growth
strategy.
Appendix B
Public Engagement Report
#YourCityYourPlan
BRANDON CITY PLAN
Phase 1 "What We Heard"
Community Engagement Report
Brandon City Plan Engagement Process
February -- June 2022
This page intentionally left blank
BRANDON CITY PLAN // #YourCityYourPlan
Land
Acknowledgement
The City of Brandon is located on Treaty 2 land,
the unceded territory of the Dakota, and the
homelands of the Red River Métis, who have lived
in their territories since time immemorial.
Website: brandon.ca/CityPlan
Email: [email protected]
Phone: 204-729-2110
BRANDON CITY PLAN // #YourCityYourPlan
Table of
Contents
Project Overview ................................................................................................................................................ 1
Community Engagement Overview .............................................................................................................. 2
What we asked people ................................................................................................................................. 4
How we let people know about the project ........................................................................................... 6
Community Workshops Feedback ................................................................................................................. 10
Inclusive Neighbourhoods.......................................................................................................................... 11
Movement--Vision Zero .............................................................................................................................. 13
Environment--Net Zero .............................................................................................................................. 15
Summary of Phase 1 .......................................................................................................................................... 17
Community Engagement Next Steps ............................................................................................................. 25
BRANDON CITY PLAN // #YourCityYourPlan
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What We Heard // Community Engagement Report Phase 1
Project
Overview
A City Plan is a key strategic document that
provides direction for growth and change in the
city. It is a policy document common in cities
across Canada. Its purpose is to guide growth and
change in a community to efficiently manage
resources and align with community values.
The City of Brandon ("City") has relied on the
Brandon and Area Planning District ("BAPD")
since 2013 to guide growth and change. With the
dissolution of the BAPD in 2020, the City has the
opportunity to develop an entirely new City Plan
tailored to our unique needs and circumstances.
The Province of Manitoba requires all planning
districts and municipalities to adopt a
development plan.
The Brandon City Plan will build on past work to
facilitate growth and change in the community.
This is an opportunity for the City to establish the
community's unifying values. This report
summarizes engagement that has already
occurred which will guide the City's priorities for
the next 30 years.
Community engagement is
playing an important role in
shaping the strategic
planning for the City of
Brandon. From February
2022 to June 2022, we
asked citizen for feedback
on what direction they
think the City should be
heading in.
BRANDON CITY PLAN // #YourCityYourPlan
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What We Heard // Community Engagement Report Phase 1
March 2022
Community
Engagement
Overview
Initial Public Engagement
The City Administration ("We") asked
people an initial question: What kind of city
do you want Brandon to be? . A week later,
we released a community survey asking
general questions about city values. What we
heard helped to inform our strategic
planning around developing key focus areas
for future engagement sessions.
February 2022
Targeted Community
Meetings
We met with community groups to discuss
their priorities and goals, and determine
opportunities to align this feedback with the
City Plan.
We developed workshops surrounding three
(3) themes: Housing, Movement, and
Environment. We ran community themed
workshops for the public to provide feedback.
Interactive information boards were placed
at various city locations as well as online for
people to provide comment. We also
continued to meet with community groups.
April -- May 2022
Community Themed
Workshops
PHASE 1
BRANDON CITY PLAN // #YourCityYourPlan
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July -- August 2022
Community Celebration
We organized a community gathering to
directly engage with residents, provide
information on project, and offer further
opportunities to share feedback.
June 2022
Plan Drafting &
Engagement Reports
The draft Community Engagement Report
Phase 1 was completed. The Community
Engagement Report Phase 1 is targeted to be
released by mid-August 2022.
"One of the reasons I love
Brandon is the people
capital"- Survey Respondent
BRANDON CITY PLAN // #YourCityYourPlan
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What we asked people
We initially asked the Brandon community to
provide feedback on general city matters.
1. General Themes
Why we asked for feedback
General themes were used to guide our focus for
specific engagement. We used this general
understanding of themes to develop targeted
questions and topics that were important to the
Brandon community.
What we asked
Complete the sentence "In 20 years, I want
Brandon to be..."
What do you like about living in the City of
Brandon?
What concerns do you have about living in the
City of Brandon?
What is most important to you? Housing,
Movement, Environment, Business, Community
Services, other.
BRANDON CITY PLAN // #YourCityYourPlan
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2. Housing, Movement, & Environment
Why we asked for feedback
Common themes were noted and used to identify
issues facing residents which led to collaborating on
suggested policy changes. Three (3) themes were
frequently raised in the initial survey findings as
well as feedback received from community
meetings, which influenced our community
workshop topics: Housing, Movement, and
Environment.
What we asked
What kind of inclusive housing efforts would
you like to see in your City?
What kind of change in movement (car, bike,
others) would you like to see in your City?
What kind of efforts towards Net Zero, would
you like to see in your city?
What we asked people
We then asked questions surrounding the
topics of Housing, Movement, and
Environment.
BRANDON CITY PLAN // #YourCityYourPlan
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How we let people know
about the project
How we let people know about
involvement opportunities
We sent postcards with the
project's information to
22,600 residences
We posted on social media
platforms (Facebook,
Instagram, and Twitter)
We dropped off hard copy
surveys to three (3) senior homes;
We also partnered with Seniors
for Seniors to do workshops
We talked to media & attracted radio and newspaper coverage;
We advertised in the local newspaper and radio
We send email to the
Planning & Buildings
Department subscribers
We posted information and feedback
posters at six (6) community locations (City
Hall, Riverbank Discovery Centre, Brandon
University, Assiniboine Community
College, Downtown Public Library, &
Shoppers Mall)
We hosted five (5) community workshop
sessions (Developers, Youth, Movement,
Housing, Environment, Realtors, Blue
Door, BUAPC, Seniors for Seniors)
We had over 20 meetings
with community groups
We met with City Council &
informed them about
engagement opportunities
We hosted a community
engagement celebration event
to gather general in-person
feedback
BRANDON CITY PLAN // #YourCityYourPlan
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How we let people know
about the project
How many people were interested in
learning more about the project
visited our social media
platforms for the project
completed the survey online &
in-person
engagements on social
media post (214 likes, 86
comments, & 84 shares)
attended the community
themed workshops
380+
visited the City Plan
Celebration event
100+
80+
community groups &
organizations met with us
calls & emails asking for more
information about the project
21,000+
views of the project
webpage
2,800+
800+
20+
20+
BRANDON CITY PLAN // #YourCityYourPlan
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How we let people know
about the project
Whom we heard from
We heard from people living in various parts of the City.
We asked people to identify their postal code in our initial survey to ensure we
were hearing from a range of community members across the City. Below is a heat
map of survey respondents across the City.
BRANDON CITY PLAN // #YourCityYourPlan
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How we let people know
about the project
Whom we heard from
completed the survey online &
in-person
800+
The number of respondents shown on this page are captured from the online survey only
Age
<20 years
2%
21 - 30 years
15%
31 - 40 years
27%
41 - 50 years
21%
51 - 60 years
15%
>61 years
17%
Prefer not to
answer
2%
496
265
2
31
Woman
Man
Non-binary / Gender Diverse
Prefer not to answer
Gender
Things I like in the City
of Brandon
We worked closely with several community groups,
representing marginalized individuals, such as students,
youths, immigrants, Indigenous Peoples, and seniors.
BRANDON CITY PLAN // #YourCityYourPlan
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What We Heard // Community Engagement Report Phase 1
Community
Workshops
Our engagement on the Brandon City Plan
revolved around having discussions with
residents about the vision of the city for the
next 30 years.
Engagement Objective
The Phase 1 of the community engagement,
occurred from February to June 2022, was done to:
raise awareness regarding the Brandon City
Plan,
determine the City's priority themes, and
begin considering policies which will shape the
City's vision for the next 30 years.
The Community Themed Workshops were built on
the feedback from the Initial Public Engagement
(i.e. initial question and community survey) and
Targeted Community Meetings. Throughout the
Phase 1 of the community engagement, we worked
with several community groups on exploring the
implications of making big shifts, such as
addressing climate change more aggressively, or of
becoming a city that values all modes of
transportation or movement equally.
Feedback Tools
We asked feedback using
A hardcopy feedback form
In-person workshop sessions
Follow up emails and phone calls
Information poster boards for comment at
community locations
Some people were unable to attend in-person
meetings and chose to provide feedback by email
or phone.
Feedback
BRANDON CITY PLAN // #YourCityYourPlan
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Inclusive Housing/Neighbourhoods
Mix of Housing Types
More housing options like tiny homes, one-
bedroom suites, basement suites allowed
everywhere, attached or secondary suites
permitted, co-op housing, student housing,
halfway housing for former offenders, sober
living facilities
Mix of housing types creates options for people
of all abilities
Consider fit in neighbourhood, aesthetic,
greenspace, design, and style
Access to services like stores and schools
Multiple unit types can foster community
Increase density and utilize existing utilities.
Permit four unit buildings everywhere n the
city
Transit-oriented development and bike
infrastructure
Consider relationship to parking and traffic
when increasing housing types in
neighbourhoods
Narrow streets to slow traffic
Seniors housing for increasing seniors
population
On May 17, 2022, the first community themed workshop was held and covered Housing. In this
workshop, we facilitated what Inclusive Housing/Neighbourhoods meant, and some examples of
what is already happening in the City was presented to provide context on potential options.
We explored Housing with residents through three themes to help guide the discussion, and
provided the opportunity to give general feedback.
Mix of Uses
Housing on top of strip malls
Level of service that meets local need such as
office, café, daycare, small gym, pharmacy, and
essential service
Provide amenities like dog parks
Provide more appropriate parking and traffic
increase
Security concerns for foot traffic, mixed uses
brings different people, perceived as both an
advantage and disadvantage
Larger scale developments with higher density
BRANDON CITY PLAN // #YourCityYourPlan
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Inclusive Neighbourhoods
Others
More housing options for people experiencing
homelessness
Acoustically treated homes
Make neighbourhoods pedestrian-friendly
3D-housing projects using waste material
More housing for seniors
Inclusivity and diversity on decision-making
committees
Increase in newcomers, need for appropriate
housing
Corridor Intensification
Corridors shouldn't just be places to pass
through with car. Better pedestrian, cyclist and
public transit access (multiple modes of
transportation)
More mixed-use development
Let infrastructure lead to where people are
going, not just for leisure
Wide walkways on character streets for
pedestrian comfort and safety, no cars
Accessible fresh local food and places to build
community. Amenities draw people into areas
Higher-density housing on corridors. Build up
not out
Consider corridor to non-corridor transition
BRANDON CITY PLAN // #YourCityYourPlan
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Movement--Vision Zero
Active Transportation Network
More bike lanes (dedicated-total separation
from sidewalk) and more education, especially
for drivers, about responsibility on the road
and cyclist signs. Public safety campaign
Prioritize sidewalk cleaning in winter months
Bike paths that connect the whole city for
commuting, not just for leisure. Connect 34th to
1st Street. Commuting on 18th Street, Aberdeen
Avenue, 13th Street
Better lighting on paths
Old bike path loop is obsolete, rework to start/
finish at riverbank
Parked cars are obstacles for cycling
Connectivity to and through greenspaces
Markers on existing trails for emergency
responders
Bike share and bike rescue program
Vehicular Network
Less reliance on cars and sprawl
Fix the roads and back lanes so that people can
use garages instead of parking on the street
Replace 8th Street bridge
Eradicating one-way streets could bring better
traffic movement
Opportunities to incorporate active
transportation
There should be a better way to denote lanes
Policy to limit street use to single vehicle traffic
and bicycle and pedestrians
Electric fleet--lead by example
Provide services within neighboruhoods to
reduce travel
Introduction of priority and carpool lanes
On May 31, 2022, the second community themed workshop was held and covered Movement. In
this workshop, we facilitated what Vision Zero meant, and some examples of what is already
happening in the City was presented to provide context on potential options.
We explored Movement with residents through four themes to help guide the discussion, and
provided the opportunity to give general feedback.
BRANDON CITY PLAN // #YourCityYourPlan
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Movement--Vision Zero
Traffic Calming--Speed Limit
Reduction
More safe crossings on high speed roads, high
visibility crosswalk around traffic intersections
Red light cameras at major intersections
Double parking on street, and narrower
Fewer vehicles on the road and more public
transit should be the future of the city
Pedestrians should have priority on the road
Divide the city into neighbourhoods so each
neighbourhood decides its own needs
Straight long streets are easier to speed down
When checking if speed reduction is ok, who is
being polled? Drivers or pedestrians?
Possible areas to improve, such as streets with
high vehicular traffic
Parking
Accessibility for people with mobility needs
How much parking is really needed for new
developments? Are we requiring more than is
needed? Consider elimination of parking
minimums
We can use parking as a tool to migrate
behavior away from car dependence.
Incremental reductions will slowly influence
behavior
How do we make specialty parking universal?
Maternity, seniors, electric, etc., ensuring spots
for all that need them
Others
Bus timing change to 6am--11pm
More convenient bus routes and heated bus
stops to allow more use
Accommodation of electric cars and buses
Are we planning new neighbourhoods to
accommodate transit? Increase density and
corridor intensification. If it takes longer
because of traffic calming, people may take
public transit
BRANDON CITY PLAN // #YourCityYourPlan
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Environment--Net Zero
Waste
Waste recapture - methane gas. How is waste
being managed?
Education for newcomers on blue and green
bins, and recycling
Waste bins at bus stops
Downtown task force address garbage
Recycle locally and provide incentives for
recycling
Compost in green bins works well
No commercial pick up for food establishments.
Some food places donate food that has been
sitting
Green cart program for the whole year. Indoor
compost facility
Recyclopedia=recycle everywhere
A day in a year or month that doesn't cost
anything to community members. People be
given 24 hours to check bins and see if they can
reuse or recylce anything
Methane can be used as a heat source. Some
municipalities do that
Charging for hazardous waste
Start green cart program based on need in
spring. Expand to multi-dwellings and
commercial spaces
Increase tipping fees at landfill to help with
waste management. Tipping fee for residential
pick up
Is it possible to have automatic assisted sorting
of recycling?
More auditing of recycling bins and green bins.
Penalize vs incentivize
Provide a more effective way to educate the
public
Advocate for implementation of deposit refund
and a plastic bag legislation
On June 7, 2022, the third community themed workshop was held and covered Environment. In
this workshop, we facilitated what Net Zero meant, and some examples of what is already
happening in the City was presented to provide context on potential options.
We explored Environment with residents through four themes to help guide the discussion, and
provided the opportunity to give general feedback.
BRANDON CITY PLAN // #YourCityYourPlan
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Environment--Net Zero
Food Security
Expand public gardening and have mentorship
programs for inexperienced gardeners
Need more food rescue and diversion
Literacy on food waste by library, schools, food
council, grocery stores. Use the downtown
commercial kitchen
More garden space close to home within
neighourhoods for security
Incentives for developers to provide
community gardens
Native plants and edible perennials
Use corner stores in new areas to address food
diversion
Buildings
Energy reduction initiatives
Alternative heating methods
Retrofit older buildings
Municipal buildings should set an example
Proactive updates to building codes
Prioritize infill development and support better
transit
Add green zoning provide incentives to spur
green development
Consider light pollution
Site design elements that control drainage on
site
Public buildings to have electric chargers
Greenery
Urban heat island in older areas. 18th street is
drab and hot
Have business centres plant trees
Allow alternatives to boulevards and lawns that
encourage biodiversity
Reduce asphalt, more permeable alternatives.
Also plant signage
Urban gardens including rooftops
Indigenous plant collaboration and education
on greenery
Improve connectivity between greenspaces
Others
Recycle and provide paper bags
Why go green when we already have oil and
gas
Bottle depot for bottle can returns
Need urban forest management plan
Noisy vehicles that spit out black smoke should
be prohibited
Awareness of litter on the street, maybe through
billboards
Ban or reduce pesticides, let the dandelions
grow
Public greenspaces and walking paths in
Brandon are strong, but need more
BRANDON CITY PLAN // #YourCityYourPlan
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What We Heard // Community Engagement Report Phase 1
We engaged with over 150 residents, generating hundreds of comments and ideas during
the Phase 1 community engagement sessions. Comments, concerns, and ideas received
throughout the first phase of community engagement are generally summarized below.
Housing
Many residents felt there is a growing need to
address issues surrounding homelessness. Residents
were also concerned about housing options (e.g.
tiny homes, one-bedroom units). Some residents
also felt that there is a lack of housing for seniors
and vulnerable people.
"In 20 years, I want Brandon to
be a city where no one is
homeless."
Environment
Residents were concerned about sustainable
development, composting, energy transition, and
maintenance of city tree canopy.
"In 20 years, I want Brandon to
be a place that takes climate
change seriously."
Movement
There were several concerns with the condition of
roads. Residents also expressed that the City is
designed for vehicles only and needs to improve
public transit and design for cyclists and
pedestrians.
"In 20 years, I want Brandon to
promote cycling and walkability.
With gas prices always going up
I would love to see more bike
lanes in the City"
Truth & Reconciliation
Residents also recommended to have a strategy for
truth and reconciliation, and effort to reach out to
Indigenous people
"Strategy for addressing Truth
and Reconciliation Report
recommendations and issues
across all areas."
Summary of
Phase 1...
BRANDON CITY PLAN // #YourCityYourPlan
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Summary of Phase 1
Community Engagement
Family Recreation
Residents expressed a desire for recreational
facility diversity, such as water parks. There were
concerns that there isn't enough family recreation
activity options.
"The City needs more areas of
green space, for people to go
and enjoy with their families."
Substance Abuse
There were some concerns regarding accessible
help for people with addiction problems. Some
residents expressed a desire for safe consumption
or injection sites in the City, and quick response for
people needing detox and rehab.
"In 20 years, I want Brandon to
be a safe city. No drugs, no
stealing, no homeless, better
help for all those that need help"
Public Safety
Residents expressed a desire to improve the
perception of safety in downtown Brandon.
"In 20 years, I would love to see a
safer, more bustling and vibrant
downtown Brandon."
BRANDON CITY PLAN // #YourCityYourPlan
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Blue Door
Blue Door is considered as one of downtown's
major hubs. We visited Blue Door every Thusday
in March to engage with the downtown community
about the project and get feedback on their vision
is for the city.
Better employment opportunities for people
with barriers to working
More affordable housing to live
Better medical support
Services that help with housing
Lowest homeless rate in Canada
The Bears Self Healing Centre
Medical transport services
RJ Street Recovery Centre
Encourage Indigenous business
Public Safety
Stop racism
Police who care and don't harass us
No needles on the ground
A recovery centre that will take you when you
need it and not put you on a wait list
Pictures are taken by Flo of Ask Auntie
Summary of Phase 1
Community Engagement
Photo courtesy of Flo of Ask Auntie
BRANDON CITY PLAN // #YourCityYourPlan
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BUAPC May 26th Event:
We also partnered with Brandon Urban Aboriginal
Peoples Council (BUAPC) to put on a public event in
Princess Park in May to collect additional
feedback.
Address climate change though proper
awareness, cleaning of drainage, provision of
alerts on weather changes
Less discrimination
Safe and clean
Educate people and start addressing underlying
issues
Bring back the walking path with lighting.
People need to get to the stores on north hill
More Indigenous cultural activities
Play structure in some city parks. Make the
park more family friendly
Safe injection sites with nurses available
Homelessness, affordable housing resources for
addictions, clean up downtown bus shelters
Stop moving people around. Solve the issues
Mens/womens, two-spirit, second stage
housing--affordable living for all
High housing cost, increase housing choice,
access to employment especially for those with
criminal record
City safe for walking, recreation, aesthetic, and
sustainable for anyone. Easy access to more job
opportunity
More Indigenous leadership & representation
in schools and community
Summary of Phase 1
Community Engagement
What kind of city do you want for yourself,
your children, & grandchildren?
BRANDON CITY PLAN // #YourCityYourPlan
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Summary of Phase 1
Community Engagement
Highlight of Phase 1 Community
Engagement Process
The initial question and the survey that initiated
the engagement process reached a number of
residents, but were not effective in providing an
opportunity for focused input. There were also
concerns with the timing of receiving mailouts,
and the survey closing shortly after postcards were
received in the mail. Noting this, we provided them
different opportunities for feedback.
After the initial phase, residents found registering
and participating in the workshop sessions. We
received feedback that residents appreciated being
able to provide comments through different
mediums, in person, or by phone or email.
Overall, residents and community groups were
receptive to engage in the engagement process. We
ensure that, as much as possible, we went to where
the people were and met with them in their spaces.
They appreciated that we would take the time to
listen to their concerns and even follow-up with
them about their project.
BRANDON CITY PLAN // #YourCityYourPlan
22
Summary of Phase 1
Community Engagement
"Just wanted to send a quick note
to let you know how much I
enjoyed tonight's event. I have
been struggling with feelings of
hopelessness for the last few
weeks and this has felt like a
breath of fresh hope. Thanks for
giving us the opportunity to be
heard with our hopes and dreams
for the community we live in. Look
forward to doing this again soon".
Some community groups expressed a loss of hope
in the direction the city is heading. Generally,
residents were eager to understand the project and
timelines, and get an idea of how the outcomes
would affect them.
Community groups and residents have expressed
the desire to be further engaged on an ongoing
basis. Some people have mobilized to form
working groups and advocacy groups.
Highlight of Phase 1 Community
Engagement Process
BRANDON CITY PLAN // #YourCityYourPlan
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What We Heard // Community Engagement Report Phase 1
Community
Engagement
Next Steps
PHASE 2
September -- November 2022
Further Community
Workshops
Adoption Process
May -- October 2023
January -- March 2023
Internal & Stakeholder
Discussion
Phase 2 of the community engagement will
begin in Fall 2022. This engagement process
will include more workshops and connecting
with community groups who were not
available during Phase 1.
The City Administration will then present the
Brandon City Plan to City Council, and begin
the adoption process in Summer/Fall 2023.
#YourCityYourPlan
Community Stakeholder
Engagement Report
Brandon City Plan Engagement Process
February 2022 -- December 2022
The City of Brandon is located on Treaty 2 land,
the unceded territory of the Dakota, and the
homelands of the Red River Métis, who have lived
in their territories since time immemorial.
Website: brandon.ca/CityPlan
Email: [email protected]
Phone: 204-729-2110
of
Project Overview ................................................................................................................................................ 1
Stakeholder engagement overview ............................................................................................................... 2
Group specific engagement ............................................................................................................................ 3
Engagement format .......................................................................................................................................... 4
What we heard ................................................................................................................................................. 5
Group priorities ............................................................................................................................................. 5
Measure success ........................................................................................................................................... 6
Core community values .............................................................................................................................. 7
Engagement follow up and next steps ........................................................................................................ 8
A City Plan is a strategic document that provides
direction for growth and change in the city. It is a
policy document common in cities across Canada.
Its purpose is to guide growth and change in a
community, to efficiently manage resources and
align with community values.
Since the purpose of the project is to find out what
Brandon's community values are, it was vital to
engage with various community stakeholder
groups throughout the process to explain the
project, understand their priorities and provide
them an opportunity to provide feedback specific
to the City Plan project.
There are various stakeholder and community
groups in the city with different priorities such as
local businesses, community wellness
organizations, social groups and fellow
governments. We met with several of these groups
to understand their priorities and potential for
alignment with the Brandon City Plan. This report
summarizes the findings from stakeholder
engagement carried out in 2022.
Stakeholder and
community engagement is
key to understanding
community challenges and
opportunities. Often these
groups are doing the work
on the ground and play an
important role in shaping
the vision for the City.
From September 2022
The first stage was to reach out to as many
stakeholders as possible through email lists,
social media and phone calls to introduce the
project to them and invite them to participate
and follow along. We held most of these
meetings between February and June 2022, but
didn't reach enough groups, so we continued
engagement in the fall of 2022 and winter 2023.
From February 2022
After the introduction, we set up a second phase
of engagement sessions to provide an update
and summary of what we were hearing from the
public. We met with community groups to
discuss their priorities and goals, and determine
opportunities for alignment.
In the spring of 2023 we will conclude the public
engagement portion and work drafting the plan.
Once we have a draft plan we hope to circulate it
to stakeholders to provide them an opportunity
to review and give feedback before the
document is finalized.
From June 2023
3 Stages
The stakeholder engagement sessions were
done in 3 stages, introduction, update and
draft review.
It was very important to identify groups that are
often excluded from the table on such important
discussions. We were intentional about reaching
groups such as youth, seniors, indigenous peoples,
students and immigrants. The format for these
meetings was more informal and didn't
necessarily have the same flow or take the same 3
stage approach. For example, in working with
Brandon Urban Aboriginal peoples' Council
(BUAPC) we asked that they design the
engagement process so that it is relevant for their
community members.
The detailed feedback received from all these
groups can be found in the Community
Engagement database created to store all
engagement feedback. A summary is provided on
the next page.
"If the city is growing and having
more people, in 30 years
transportation will be an issue.
We will need to build a subway
system to make sure that people
can still get around the city" -
Middle school student
"Can't we turn the old Esso gas
station downtown into a
garden?" - youth at BAYAC
The Province of Manitoba was carrying out EngageMB strategy in 2022 and provided
some of their findings to the city. Special thanks to Rob Lavin of Seniors for Seniors.
-
Less discrimination
-
Addressing underlying issues of
homelessness and substance use
-
More Indigenous cultural activities
-
More Indigenous peoples representation in
government and leadership
-
Safe injection sites
-
Affordable housing
-
Address climate change
-
Multimodal options to get around the city
easier
-
Access to services for those with barriers
-
Improve downtown safety
-
Stop racism
-
Population retention and job opportunities
-
Access to services and translation of
information (signage)
-
Partnership and collaboration to support
and retain immigrant population
-
Housing affordability
-
Investment in immigration
-
Transit availability and affordability
-
Improve downtown safety
-
Consultation with international students
-
Address downtown revitalization
-
Reduce red tape and bureaucracy
-
More recreational options for all seasons
-
More job opportunities
-
No racism and sexism
-
Less garbage and pollution
-
Homes for people that are homeless
-
More options to get around like safe cycling
-
Efficient multimodal options especially for
seniors not driving
-
Transit stops and service close to seniors
homes
-
Affordable housing
-
Make information more easily accessible
(often they don't know what's going on in
the city)
-
Programs for those with low income
-
Social inclusion
-
Early snow clearing for people using
scooters
-
Collaboration and partnership with groups
such as students
"To only focus on celebration of
culture is to use peoples
cultures. It is important to invest
in culture." - rep from immigrant
community
What does success look like?
Group priorities
Each group was provided general
background information and an explanation
of the project purpose, timelines and goals.
We then had a discussion identifying what
their specific priorities are in relation to the
city plan project.
What do you want this plan to do for you?
Measure of success
It was important to have a discussion about
expectations of the project. Groups were
asked what success would look like to them.
If we were to look back and say that the
Brandon City Plan project was a success,
what would that measure of success be?
To try an understand the top values that
should be in the city plan vision and not
compromised, we asked participants to
identify 3 top non-negotiable community
values that the city should have.
What are your top three community values?
Non-negotiable community values
The format for all the engagement sessions
was similar, asking 3 main questions while
also allowing for general feedback.
What do you want this plan to do for you?
-
Population retention
-
Alignment with the priorities of age-friendly,
poverty and community wellness initiatives,
heritage
-
Improve downtown safety
-
Eradicate homelessness
-
Clear plan with actionable items
-
Use of all existing resources of previous
studies done
-
Cater for needs of those in more need,
housing food, recreation, active
transportation
-
Collaboration with community groups
-
Ensure the plan has simple words for the
average person not "innovation and
sustainable"
-
Transit efficiency and multimodal network
-
Rebuild trust and transparency
-
Access to services for people with disabilities
-
More employment
-
Better wayfinding and signage that takes
into consideration people whose first
language isn't English
-
More appealing look on highway.. "welcome
to Brandon" sign that is welcoming and
vibrant
-
Resident prioritization through better
communication and transparency
-
Place where everyone feels like they belong
-
Equity diversity inclusivity
-
Affordable recreation for all
-
Tourist attractions in the city
-
Retail/shopping/cafes in university area
-
Support and invest in culture and diversity
-
Thriving Arts community
-
Higher percentage of greenspace required of
developers
-
Access to safe affordable housing
-
Prioritize aging population
As part of the engagement sessions, the community groups were asked "what do you want this
plan to do for you?" Below is a list of some answers provided:
What does success look like?
-
Council leadership, ownership and sticking
to the plan
-
Seeing and tracking action--implementation
of the plan and clearly communicating the
implementation
-
More collaboration--Achieve goals together
-teamwork--same vision
-
Continued community engagement
-
A plan that is reflective of people of all ages,
incomes, cultures and backgrounds
-
Consistency
-
Community buy-in
-
Central hub of information for people to
know what's going on in the city. Consistent
update
-
An actionable document
-
Improved communication
-
A community that people are excited to
move into
-
No one left behind
-
Achievable plan
-
Solutions that solve long term issues, no
more Band-Aids
-
Councilors and advocacy groups as
champions of plan
-
Revitalized downtown
-
Success is when we have worked with the
same vision
-
Plan should bring people downtown,
residents and businesses
-
Inspire action through a vision that can be
championed
-
Engaged citizens
-
Population growth and retention
-
Stakeholders can see themselves in the plan
If we were to look back on the project and plan, what would be our measure eof success? What
does success of this project and plan look like to you?
"Success is when we are all
working with the same vision."
- resident at community group
meeting
In an effort to understand what residents non negotiable core community values are, each of
the stakeholder groups was asked the question "What three words do you think absolutely must
be part of the vision for the City of Brandon?"
The top 5 words were Inclusive, safe, sustainable, vibrant and affordable. Below is a word cloud
of all the answers provided.
"We appreciate the effort that
goes into the plants in the city?" -
resident at TALC meeting
January -- May 2023
June -- August 2023
June 2023
We have prepared a draft vision in the form of
information sheets, highlighting the key topics
brought up in the various community
engagement sessions.
These information sheets are being shared
with the public from January to May 2023.
During this time the public can view and
comment on the information to "confirm the
vision" for the Brandon City Plan.
September -- October 2023
November 2023 -- Spring 2024
We have heard often that Brandon, as an organ-
ization and community, work in silos. Brandon
City Plan is an opportunity to bring alignment
between various priorities and work within the
same vision.
How will you communicate with the public?
This project highlighted a lot of the great work
already going on in the city such as various
efforts by community groups to address issues
in the City's core. Since this is a high level
document, its purpose is to be a vision and
guide all future growth and development. In a
practical sense, it means everything we do, all
decisions made and all initiatives moved
forward should be in line with the Brandon City
Plan.
More specific action items can be found in
action plans or master plans. Brandon already
has a number of masterplans in place such as
the Recreation Master Plan, Greenspace Master
Plans and Climate Change Action Plan (currently
being drafted) that lay out specific action items.
One of the implementation items for the City
Plan then is to ensure all masterplans are in
alignment with the City Plan.
How will you address the recommendations provided?
Residents have expressed concern that
community engagement will cease once the
project is complete. The project page will remain
active after the document is drafted and
adopted. The Brandon City Plan will be reviewed
every 10 years and that process should involve
comprehensive community engagement as well.
Otherwise, residents can view updates on the
project page or contact the local planning office
to inquire about the Plan. The project team is in
discussion with council about more effective
communication.
#YourCityYourPlan
BRANDON CITY PLAN
Confirm the Vision
Final Engagement Report
Brandon City Plan Engagement Process
January 2023 -- June 2024
BRANDON CITY PLAN // #YourCityYourPlan
1
Engagement Report
Overview
In the final stages of the City Plan project, it was important to share the draft vision with as
many residents as possible to confirm the vision. It was vital to engage with various community
stakeholder groups to explain the vision and its implications, understand their concerns and
provide them an opportunity to give feedback before the final document drafting and formal
adoption process.
We appreciate the effort the
city is putting into engaging
residents about the future.
It is good to be part of the
process of creating the
vision" - resident
BRANDON CITY PLAN // #YourCityYourPlan
2
Engagement Report
January--June 2023
Engagement
Plan 2023
Mobile Open House
The primary engagement method was to have
an open house in all city neighbourhoods. This
would increase the chances of more residents
being aware of the plan and visiting locations
close to them to provide feedback. It is best
practice in effective community engagement to
go to where the people are instead of expecting
them to come to you. Community Centers and
some churches, all over the city were reserved
for these events. Advertising was done though
Brandon Sun, Radio, Social Media and posters.
January--June 2023
Stakeholder Engagement
At this time the team had engaged with various
community groups and they had provided
feedback. This stage involved further
engagement with these groups to provide them
the draft vision and ask them to confirm the
findings or to clarify as needed. This would be
done as part of ongoing meetings such as staff
meetings and board meetings that these groups
would be already hosting.
To reach a larger group of residents,
understanding that often residents prefer
passive engagement methods, the draft vision
was placed at various high traffic city locations
such as the shoppers mall, to gather more
resident feedback.
January--June 2023
Boards at key locations
Three modes of engagement were planned to
wrap up the project engagement before
moving into policy drafting.
BRANDON CITY PLAN // #YourCityYourPlan
3
Engagement Report
Engagement Plan
Adjustment
After two open house sessions one at a church on
the North Hill and one at Green Acres Community
Center, the project was halted due to
misinformation in the community regarding the
city plan having a "15 minute city" agenda that
aligns with the federal government and United
Nations. As it was not possible or safe to continue
mobile open house sessions, all were cancelled
and instead a larger public meeting was held on
March 18, 2023 at the Keystone Centre.
The purpose of the larger meeting was to provide
a formal platform to explain what the project is
especially to residents that were, at this stage,
unaware of the project, provide some background
as to where the draft vision came from and
answer resident questions. The meeting was well
attended with well over 100 people. In attendance
were several residents that had been part of the
city plan engagement process and helped draft the
vision.
Following this meeting and having dispelled the
misconceptions that derailed the project,
administration proceeded to draft the city plan.
"What do you mean this is a
vision from residents? This is the
first I am hearing of this plan." -
resident
BRANDON CITY PLAN // #YourCityYourPlan
4
Engagement Report
Draft City Plan
To share the drafted city plan document with the
public, another public engagement session was
planned for March 20, 2024. The purpose of this
session was to get into some of the implications of
the new city plan policies. As well, since there
were several ongoing initiatives that align with
the city plan, this event provided an opportunity
to show residents how all the ongoing projects fall
under the vision of the city plan. For example:
Vision Zero Strategy--Traffic Calming and
speed reduction
Housing Accelerator Fund application to
increase housing supply
Active Transportation project to reconstruct
26th Street
Just over a dozen draft city plan documents were
made available at the event for residents to
review. The plan was also made available at key
locations around the city and online.
Generally there was some understanding of the
proposed plan with some frustration from
residents about current conditions.
The next stage in the plan is to revise the
document as needed based on feedback received
(minor feedback mostly text changes) and begin
the formal adoption process.
We don't need a new plan. We
just need you to fix the potholes.
- resident
BRANDON CITY PLAN // #YourCityYourPlan
5
Engagement Report
Lessons Learned and Next Steps
Lessons on Community Engagement
The city plan project rarely went according to plan. But
throughout the process the main goal was to understand
resident concerns and communicate clearly and
transparently. Reaching residents on issues that aren't
immediately impacting them is difficult. As
implementation of initiatives commences and continues,
we expect community engagement to continue.
Community buy in and support of this plan is vital to its
success. As we move towards adoption and then
implementation of the plan, we look forward to making
the vision a reality.
Next Steps
The draft city plan has been circulated to the public, internal departments, surrounding municipalities and
provincial authorities. Once the document is revised as needed, the formal adoption process will begin with 1st
reading and then a public hearing hosted by City Council. 2nd and 3rd reading are scheduled for late summer-
early fall.
The first step towards implementation of the plan is to bring all other documents, plans and strategies into
alignment with the City Plan.
Plan Adoption--2024
"We need a plan that is
achievable and realistic" - resident