Appleton, Newfoundland and Labrador
· adopted 2020-06-02
This is the exact embedded text of the captured official document.
Snapshot f9ef59daceff · verified 2026-06-05 ·
original document ·
archived snapshot ·
unofficial consolidation, the official version is held by the municipal clerk.
I
I
I
I
I
I
I
I
I
I
I
I
I
I
URBAN AND RURAL PLANNING ACT, 2000
RESOLUTION TO APPROVE
TOWN OF APPLETON
MUNICIPAL PLAN (2017-2027)
Under the authority of Section 16, Section 17 and Section 18 of the Urban and Rural Planning Act 2000,
the Town Council of Appleton:
a) Adopted the Town of Appleton Municipal Plan (2017-2027) on the 2nd day of June, 2020;
b) Gave notice of the adoption of Municipal Plan (2017-2027) by advertisement on the Town
Synervoice APP (which goes to every household in the community) on the 4th day of June and
the 6th day of June 2020 and inserted the notice on the Town Facebook page on June 3, 5, and
8, 2020; and,
c)
Scheduled the 8th day of July, 2020 at the Appleton Town Hall, for the holding of a public
hearing to consider objections and submissions to the Municipal Plan (2017-2027).
Now under the authority of Section 23 of the Urban and Rural Planning Act 2000, the Town Council of
Appleton approves the Municipal Plan (2017-2027) as adopted and as amended in consideration of the
recommendations of the Commissioner's report dated August 3, 2020 as follows:
a) That Mr. Richard Freake's land be designated as residential and not and commercial (see
attached map), and
b) That the designation of the land at the end of Chippy's Lane as access for future development of
the Gleneagles be deleted.
And rejects the Commissioner's recommendation to do nothing regarding Mr. Philip Freake's request
and Council will reinstate Mr. Philip Freake's land to the residential designation of the Municipal Plan
and Development Regulations, 1995 (see attached map).
SIGNED ANO SEALED this 2:j':_ day of r 2020.
~~
Mayor:
Clerk:
M unicipal Plan/A 111cnd111c111
REGISTERED
--
--
.......
-
. ..
..
---- ---·--Z
:--
- -·
... -· ...
............
(Council Seal)
-
-
~
- -
. . -.
-
~.: -..
...
'
I
I
I.
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
ATTACHMENT:
Changes to Municipal Plan Future Land Use map for the properties of Philip Freake and Richard Freake
FROM proposed 'Industrial Park' designation
TO:
(Blue arrow= Philip Freake property
& Orange arrow = Richard Freake property)
Yellow= residential; mauve/grey=lndustrial
Residential designation, consistent with
Development Regulations, 1995
Yellow=residential; red=commercial/industrial
11
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
11
I
I
I
I
I
I
TOWN OF APPLETON
RESOLUTION TO ADOPT
MUNICIPAL PLAN (2017-2027)
Under the authority of Section 16 of the Urban and Rural Planning Act 2000, the Town Council of Town
of Appleton adopts the Town of Appleton Municipal Plan.
Adopted by the Town Council of the Town of Appleton on the 2nd day of June, 2020.
Signed and sealed this
#,
~7
day of _'-
li,.LS.L:.L.8;::i:44
~ 4,!,d-i;
o:::.... ____ __,. 2020.
Mayor: -~-=="""-"'-':_::..=zJkt.=~'----L....c__
_ __ ............ ,,,,
h:~~ .
-
-.... -
Clerk:
- .
....... .
--~-:..:-~ .:..·--.::::
·.
.. .... _ ....
{Council Seal)
CANADIAN INSTITUTE OF PLANNERS CERTIFICATION
I certify that the attached Municipal Plan has been prepared in accordance with the requirements of the
Urban and Rural Planning Act, 2000.
MCIP: ~
Member, Canadian Institute of Planners (MCIP)
(MCIP Seal)
:::
- ~:.--·-
. . ' .
.. . .,
--...-: .
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
TABLE OF CONTENTS
1.0
INTRODUCTION .................................................................................................. 1
1.1
Purpose, authority and planning process .................................................................... 1
1.2
1.3
1.4
Purpose ........................................................................................................................ 1
Authority ...................................................................................................................... 1
The Planning Process .................................................................................................... 2
Overview ofThe existing Municipal Plan ..................................................................... 3
Integrated Community Sustainability Plan .................................................................. 5
UNDERSTANDING THE COMMUNITY OF APPLETON .................................................... 5
1.4.1 Location ............................................................................................................ 6
1.4.2 History ............................................................................................................... 7
1.4.3 Population trends ............................................................................................. 7
Graph 1- Regional Population Trends (2001-2016) ................................... 8
Age Groups ................................................................................................... 8
Graph 2 - Demographic Trends (1996-2015) .............................................. 9
Family and Household Characteristics ....................................................... 11
Education ................................................................................................... 11
Employment ............................................................................................... 12
Income ....................................................................................................... 12
1.4.4 Social Context ................................................................................................. 14
1.4.5 Land Use Planning Challenges and opportunities .......................................... 14
1.4.5.1 Local Constraints and Challenges ................................................................... 14
l.4.5.2Shaping Development: Existing Patterns and Future Options ....................... 14
1.4.5.3 Residential Development ................................................................................ 15
l.4.5.4Commercial/Employment Generating Development ..................................... 18
1.4.5.5 Public use Development ................................................................................. 20
l.4.5.6Community Amenity Space: Parks, Trails, Touris and Landscaped Places .... 20
1.4.6 Engineering Infrastructure and Services ......................................................... 21
1.4.6.1 Water .............................................................................................................. 21
1.4.6.2Sanitary Sewer ................................................................................................ 21
1.4.6.3 Roads .............................................................................................................. 22
1.4.6.5 Household Waste Management ..................................................................... 23
1.4.6.6Fire Protections Services ................................................................................. 23
1.5
KEY FINDINGS AND COMMUNITY VISION .................................................................. 23
1.5.1 Key Findings of Background Research ............................................................ 23
1.5.2 Public Consultaton .......................................................................................... 24
1.5.3 The Community Vision .................................................................................... 26
2.0 COMMUNITY-WIDE GOALS, OBJECTIVES AND POLICIES ..................................... 27
2.1
ENVIRONMENT ........................................................................................................... 27
2.1.1 Goals ............................................................................................................... 27
2.1.2 Objectives ....................................................................................................... 27
2.1.3 Environmental Policies ................................................................................... 28
2.1.3.1 Environmental Protection Policies .................................................................. 28
2.1.3.2Sustainable Development Policies .................................................................. 30
2.1.3.3 Responsible Management of Natural Resources Policies .............................. 31
2.2
ECONOMY .................................................................................................................. 32
2.2.1 Goals ............................................................................................................... 32
2.2.2 Objectives ....................................................................................................... 32
2.2.3
Policies ............................................................................................................ 32
2.3
SOCIAL ........................................................................................................................ 33
2.3.1 Goals ............................................................................................................... 33
2.3.2 Objectives ....................................................................................................... 33
2.3.3 Policies ............................................................................................................ 33
2.4
CULTURAL. .................................................................................................................. 34
2.4.1 Goals ............................................................................................................... 34
2.4.2 Objectives ....................................................................................................... 34
2.4.3
Policies ............................................................................................................ 34
2.5
MUNICIPAL GOVERNANCE ......................................................................................... 34
2.5.1 Goals ............................................................................................................... 34
2.5.2 Objectives ....................................................................................................... 34
2.5.3 Policies ............................................................................................................ 35
2.5.3.1 Administration ............................................................................................... 35
2.5.3.2 Community-Wide Land Use and Development ............................................. 35
3.0
LAND USE CLASSES: OBJECTIVES AND POLICIES ................................................. 40
3.1
RESIDENTIAL LAND USE DESIGNATION ..................................................................... 40
3.1.1 Goals ............................................................................................................... 41
3.1.2 Objectives ....................................................................................................... 42
3.1.3 Policies ............................................................................................................ 43
3.2
COMMERCIAL/ INDUSTRIAL LAND USE DESIGNATION .............................................. 47
3.2.1 Goals ............................................................................................................... 48
3.2.2 Objectives ....................................................................................................... 48
3.2.3 Policies ............................................................................................................ 48
3.3
INDUSTRIAL LAND USE DESIGNATION ....................................................................... SO
3.3.1 Objectives ....................................................................................................... 50
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
3.3.2 Policies ............................................................................................................ SO
3.4
FLOOD RISK LAND USE CLASS ..................................................................................... 51
3.4.1 GOAL ............................................................................................................... 51
3.4.1 Objectives ....................................................................................................... 51
3.4.2 Policies ............................................................................................................ 51
3.5
OPEN SPACE, PARK AND TRAILS LAND USE DESIGNATION ........................................ 51
3.5.1 Goal ................................................................................................................. 53
3.5.2 Objectives ....................................................................................................... 53
3.5.3 Policies ............................................................................................................ 53
3.6
PUBLIC/ INSTITUTIONAL LAND USE DESIGNATION .................................................... 54
3.6.1 Goal ................................................................................................................. 54
3.6.2 Objectives ....................................................................................................... 54
3.6.3 Policies ............................................................................................................ 54
3.7
RESOURCE LAND USE DESIGNATION ......................................................................... 55
3.7.1 Goal ................................................................................................................. 56
3.7.2 Objectives ....................................................................................................... 56
3.7.3 Policies ............................................................................................................ 56
3.8
MINERAL WORKING LAND USE DESIGNATION .......................................................... 57
3.8.1 Goal ................................................................................................................. 57
3.8.2 Objectives ....................................................................................................... 57
3.8.3 Policies ............................................................................................................ 58
3.9
MIXED DEVELOPMENT LAND USE DESIGNATION ...................................................... 58
3.9.1 GOAL ............................................................................................................... 58
3.9.2 Objectives ....................................................................................................... 59
3.9.3 POLICIES .......................................................................................................... 59
4.0
IMPLEMENTATION ........................................................................................... 60
4.1
ACTION PLAN .............................................................................................................. 60
4.2
AMENDMENTS TO THE PLAN ..................................................................................... 60
4.3
REVIEW OF THE PLAN ................................................................................................. 60
APPENDIX 1: FUTURE LAND USE MAP ...................................................................... 61
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
1.0 INTRODUCTION
1.1
PURPOSE, AUTHORITY AND PLANNING PROCESS
PURPOSE
The Town of Appleton is building on its' motto "Room to Grow" by taking the initiative to plan
for the future of the community. The Town has pursued many successful local development
projects over recent years, and the Plan Review is a further a strategic building block for the
community. The existing 1995 Municipal Plan no longer provides the necessary decision-making
framework to preserve the key values of the community; therefore, the Town is updating this
plan.
The overall purpose is to enable the community to pursue sustainable choices for the future to
achieve the most cost-effective development that is most beneficial to meet the environmental,
economic, social, and quality of life needs and desires of local residents, today and tomorrow.
Therefore, the purpose of the Plan Review is to provide an up to date, future-looking
comprehensive policy framework to influence, manage, and regulate future growth and change
in the Town of Appleton.
AUTHORITY
The Municipal Plan and Development Regulations are legal documents created under the
authority of the Urban and Rural Planning Act, 2000. The policies and development
requirements contained in the documents and mapping are binding upon the Town Council,
residents and on any person undertaking a development within the Municipal Planning Area
boundary (Section 12). The Municipal Plan authorizes Council to prevent the undertaking of any
development that contravenes a policy stated in the Municipal Plan.
The Urban and Rural Planning Act, 2000 requires the preparation of Development Regulations
to ensure that land is controlled and used in compliance with the plan (Section 35}; these form a
separate companion document to the plan. These enable the Council to administer the policies
·of the Municipal Plan through subdivision approvals and development permits.
The 1995 Municipal Plan is repealed and replaced by the Municipal Plan (2017-2027) that comes
into legal effect upon publication of the notice of registration of the Municipal Plan (2017-2027}
and Development Regulations (2017-2027) in the Newfoundland and Labrador Gazette.
Town of Appleton Municipal Plan 2017-2027
Tract Consulting Inc.
1
THE PLANNING PROCESS
The process for preparing a plan is set out in Part Ill of the Urban and Rural Planning Act, 2000
(Sections 14 - 25) which must be undertaken by a certified planner in good standing with the
Canadian Institute of Planners. Requirements include preparation of a comprehensive
background report which is outlined in Section 1.2; note that the background report is not a
legal document. Public consultations with area residents and concerned groups and individuals
are also required.
To inform the Municipal Plan update a background report was prepared for the Town of
Appleton. It provides the key findings of statistical research, community site visits and
discussions with the Town, provincial agencies and with community representatives, including
public consultation, in order to provide the foundation for preparation of the Plan update. The
background report contains a review of land use, development and infrastructure servicing
issues, and a socio-economic profile of the local population from a planning perspective. As well,
a detailed analysis was undertaken of the 1995 planning documents and mapping. This
information provides the groundwork for the Plan review.
The Plan guides the future growth and physical improvement of the Town by identifying
locations and policies for various types of land use development. The Municipal Plan provides
the basis for the Development Regulations which provide development control standards, more
refined zoning within the land use designations, and criteria for the evaluation of subdivision
and development permit applications. The Municipal Plan authorizes Council to prevent the
undertaking of any development that contravenes a policy stated in the Municipal Plan.
After consultations, Council adopts {by Resolution) the draft Plan and submits it to the Provincial
Government for review and release from provincial legislative and regulatory requirements.
Upon release, there is further opportunity for public input through a formal Public Hearing
chaired by a qualified Commissioner appointed by Council to consider objections and
representations from the public, either opposing or in favour of the Municipal Plan. The
Commissioner formally reports his findings to Council as a result of the public hearing. Council
may adopt the Commissioner report in whole, in part or reject the report in its entirety.
Council can then approve {by Resolution) the Municipal Plan and apply to the Minister of
Municipal Affairs and Environment for registration. Upon registration, the Council arranges for a
notice to be published in the Newfoundland and Labrador Gazette which becomes the date of
legal effect. A notice must also be published in a local newspaper to inform the public.
Town of Appleton Municipal Plan 2017-2027
Tract Consulting Inc.
2
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
Amendments can be made the Municipal Plan and Development Regulations at any time;
however, they must follow the procedure (Sections 14-25) set out in the Urban and Rural
Planning Act, 2000 (Section 25). Note that a Resolution of Council alone cannot amend (or
circumvent) a requirement contained in the Municipal Plan or Development Regulations. As
well, the Municipal Plan must be reviewed every five years (Section 28).
This updated Municipal Plan has been designed and formatted to act as a user-friendly,
meaningful document that can be readily used by members of Town Council, municipal staff,
local residents, community groups, business-persons and other members of the public.
1.2
OVERVIEW OF THE EXISTING MUNICIPAL PLAN
The Municipal Plan (2017-2027) applies to the Municipal Planning Area for the Town of
Appleton. The Municipal Plan represents a comprehensive planning process. The Municipal
Planning Area boundary of Appleton, established by Order 96-173 under the Urban and Rural
Planning Act, 2000 is the same boundary as the Town's Municipal Area Boundary Area under the
Municipalities Act, 1999. It includes lands located along the Gander River, land primarily located
to the south of the Tran- Canada Highway, as well as a portion of lands situated north of the
Trans-Canada Highway. The Municipalities Act, 1999 empowers the Town to apply development
controls and levy taxes within these boundaries. The Planning area boundary identifies the land
area that is subject to the Municipal Plan and Development Regulations. The total area size of
the Planning Area is an estimated 6.39 square kilometers or 639 hectares (approximately 1,579
acres).
The current Municipal Plan came into effect on October 20, 1995, and only one amendment was
made to the Plan and Development Regulations on August 23, 1996. This amendment consisted
of a rezoning of a parcel of land, approximately seven (7) hectares located south of Bowater
Road, east of River Road Extension, north of Little's gravel pit and west of the old railway right-
of-way from "Rural" to "Residential Medium Density" to accommodate a fully-serviced (water
and sewer) residential subdivision. The storm sewer system included sub-surface piping to
handle residential drainage from weeping tiles and eaves troughs and street ditches to handle
street drainage and other surface runoff. The outflow of the storm drainage system was
directed to the Gander River.
The Council also added the following text change to the Development Regulations: "Council may
require agreements with developers and property owners aimed at preserving sensitive
environments and natural areas. Such agreements will include provisions such as designation of
local conservation areas and maintenance of a percentage of existing tree cover on individual
lots and lot frontages."
Town of Appleton Municipal Plan 2017-2027
Tract Consulting Inc.
3
The Town also expanded the Municipal Planning Area boundary to include the areas identified
by the turquoise polygons on the following map. This area was also included in the preparation
of the Municipal Plan and Development Regulations.
The land use policy statements in the existing Municipal Plan and the development controls and
land use zones in the Development Regulations are outdated and not always relevant to the
Town's requirements. Many provincial Acts and Regulations have changed significantly since
1995 including a new Urban and Rural Planning Act, 2000. The revised plan will provide the
Town of Appleton Municipal Plan 2017-2027
Tract Consulting Inc.
4
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
Town with the policy and regulatory basis to frame its ongoing annual and longer-term
development goals and action strategies.
Through recognition of the strengths, assets, attributes and land use planning opportunities for
Appleton, the update of the Town's Municipal Plan and Development Regulations, is very timely
to invite local residents, business persons and other interested persons to participate in helping
to formulate the "blueprint'' and "road map" to guide growth and development, and to shape
and manage change in the community over the next ten-year period and beyond.
1.3
INTEGRATED COMMUNITY SUSTAINABILITY PLAN
In 2011, the Town of Appleton completed an Integrated Community Sustainability Plan {ICSP) to
identify the Vision, Goals and Objectives of the Town over the next five, ten and twenty years.
The ICSP was developed to meet the requirements of the Canada-Newfoundland and Labrador
Agreement on the Transfer of Federal Gas Tax Revenues in order to secure continued access to
municipality's share of the gas tax funding. These were organized under the five pillars of
sustainability: environment, economics, social, cultural and governance. The process involved
public consultation and active engagement of the Town Council.
The ICSP process was designed to accelerate the shift in local planning and decision-making
toward a longer term, coherent and participatory approach to achieve sustainable communities.
This complements the intent of the Municipal Plan for Appleton to help the Town to more
effectively plan and manage their assets and resources to achieve sustainability for community
in the long-term. The ICSP vision, goals and objectives were reviewed as part of the
development of the updated Municipal Plan.
As a planning document, the Municipal Plan includes a sustainability assessment of current
conditions in Appleton, provides sustainable goals and objectives, identifies a future direction
for the community, discusses community partnerships, and includes for an ongoing monitoring
strategy of the Plan's policies. The 2011 ICSP provided insights into the changes experienced by
the Town between 1996 - 2011 that are valuable in the preparation of this Municipal Plan.
1.4
UNDERSTANDING THE COMMUNITY OF APPLETON
To develop a relevant successful Municipal Plan for the Town of Appleton, it is essential to
understand the social, economic, environmental and land use dynamics of the community and
the regional planning area. This section probes into the context and characteristics of the Town
and how this relates to potential future challenges and opportunities for the Town in relation to
possibilities for addresses these issues in the Municipal Plan. Area explored include the location
Town of Appleton Municipal Plan 2017-2027
Tract Consulting Inc.
5
and history of the town, an analysis of the population trends including employment and income,
and the social context that contributed to the quality of life experienced by the residents of the
Town of Appleton.
1.4.1
LOCATION
Situated along the banks of the mighty Gander River across from the Town of Glenwood, the
Town of Appleton is located adjacent to the Trans-Canada Highway in the heart of Central
Newfoundland. Appleton is a community of strength, resilience and initiative, and aspires for a
more sustainable future. The Town is positioned 354 Km west of St. John's and only 20 minutes
from the Town of Gander (population 11,688) with access to the world via Gander International
Airport.
Gander offers employment opportunities as a regional center for government, social and health
services as well as, acting as a supply and retail service hub for central Newfoundland. The
locational attribute of Appleton being so relatively close to the larger centre of Gander is viewed
as a community planning strength and asset.
The nearby Beaver Brook Antinomy Mine is another source of local employment; land and
housing prices are comparatively affordable and serve as a further incentive for interest in
Appleton; and the Gander River ranks as one of the three top salmon fishing rivers on the Island.
The natural area setting and character of Appleton as the gateway to the North-West Gander
area, supports opportunities for possible expanded future growth in big game hunting, the
outfitting industry and cottage life.
The Town of Glenwood is across the river from the Town of Appleton and the two towns share
services such as, churches (Catholic, Pentecostal United and Anglican), school (Lakewood
Academy - kindergarten to Level IV), post office, a licensed lounge, and retail outlets, such as
convenience stores and a gas bar; and the Qualipu Mi'kmaq Band has an office in Glenwood.
For major services, the Town of Gander, only 20 minutes away, offers regional health, justice,
and other government services, as well as retail opportunities with such big box stores as Wal-
Mart, Canadian Tire and two shopping malls services.
Appleton also has an attractive continental climate that is less affected by the influence of the
Atlantic Ocean than the coastal cities of St. John's and Corner Brook. It has the warmest
summers on the Island. Although the winter lows are more extreme than the coastal
communities, the temperatures swings are very moderate compared to areas on similar latitude
across Canada (Environment Canada).
Town of Appleton Municipal Plan 2017-2027
Tract Consulting Inc.
6
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
1.4.2
HISTORY
Following early European settlement in the region, for a hundred years, lumber and logging
were an integral part of the history of Appleton. From the beginning when Mr. Appleton
Cleaves fell in love with the eastern side of the Gander River and settled here in the 1880s, it
was on account of the tremendous local forestry and logging resources. During the subsequent
period of 1947 to 1983, major logging operations of Bowaters Pulp and Paper Company were
established in the area. Logs at that time were transported on the Newfoundland Railway to the
mill in Corner Brook. Bowater's became a major employer for the residents of both Glenwood
and Appleton during that 35 years' timeframe.
In the 1930's, the Reid Newfoundland Railway Company established the Gleneagles Resort on
the Gander Lake, which closed in the 1940's. The Resort was viewed as an escape to the natural
forested lands of Central Newfoundland. The Resort was torn down in 1952, and the materials
were used to build a local school, which is today the Appleton Recreation Commission building.
This historical past contributes to the notion of Appleton as a "forestry mecca", a concept that
the Town wishes to capture for display to residents and tourists, as the infrastructure of the
industry from those early days no longer exists.
The two communities of Glenwood and Appleton were also the location for the ferry that
travelled across the Gander River, from the location of the present Marina in Appleton to the
pump-house in Glenwood, until 1953 when the Queen Elizabeth Bridge was opened.
In 1962, the Town of Appleton was officially incorporated separately from the Town of
Glenwood; however, the two towns continue to share many facilities and services.
1.4.3
POPULATION TRENDS
Over the past 20 years, the Town of Appleton has had a basically stable population of about 570
to 585 residents, except for the spike in 2011 where there were 620 people living in the town.
However, Appleton is located in Census District No. 6 which is experiencing the greatest
population growth in the province augurs well for positioning the Town of Appleton to attract
new residents and businesses to the Town.
Town of Appleton Municipal Plan 2017-2027
Tract Consulting Inc.
7
Graph 1 - Regional Population Trends (2001-2016)
Regional Population Trends by Rural
District, Insular Newfoundland
45,000 ~---------------------------
40,000 +-------------
35,000 -+-------------
30,000 +-------------
25,000
20,000
15,000
10,000
5,000
0
Age Groups
2001
2016
In order to provide the most relevant services to the people of the community, the Town
Council needs to understand the age profile of its residents. The federal Census Canada 5-year
age groups were re-grouped into seven categories that were based on a combination of
marketing age cateogies and the logical age groups that reflect the stages in the progression of a
persons life: child (dependent), teens (dependent but stretching their wings), young adults
(finishing education/finding jobs), young middle age (settling down/ having children), middle age
(finishing raising the children/looking towards retirement), young seniors (sometimes refrerred
to as the 'new 40), and old seniors (more likely to need health and home services).
Graph 2 illustrates the changes in each of these age groups between 1996 to 2015. Note that
the 2015 data is based on estimates prepared by the Newfoundland and Labrador Statistics
Agency.
Town of Appleton Municipal Plan 2017-2027
Tract Consulting Inc.
8
I
I
I
I
I
I
I
I
I
I
I
I
I
I
Graph 2 - Demographic Trends (1996-2015)
200 ..,....----------------=------------
Demographic Trends
180 +-------=- --=- ------- --------
160
140
120
100
80
60
40
20
0
Children
(0-14)
Teens
(15-19)
Young
Adults
(20-29)
Young
Middle
Age (30-
44)
Middle
Age (45-
59)
Young
Seniors
(60-69)
Old
Seniors
(70+)
Changes in number in individuals in age groups of Appleton population,
1996-2015
1996
2001
2006
2011
2015
The age distribution patterns of Appleton residents over the previous 15 years reveal significant
demographic trends that have an influence on land use planning considerations for the
community. Using actual Census data for 1996 to 2011, the changes are as follows:
-
Interestingly, the number of young children (0-14 years) only declined by 10 children from
110 to 100;
-
The number of young adults (15-29 years) has decreased from 45 to 35;
-
As well, the number of young adults (20-29) decreased from 75 to 40;
-
Young middle age adults (30-44) decreased from 170 to 130;
-
Middle age adults (45-59) increased from 116 to 190;
-
Young Seniors (60-69) increased from 30 to 80; and,
-
Old Seniors (70+) increased from 20 to 55.
-
In 15 years, there were three big shifts in the population age groups:
-
decrease in Young Middle Age from 30% to 21% of total population),
-
growth of the Middle Age group (from 20% to 31% of total population),
-
Seniors from 9% to 22% of the total population.
-
The Young Adult group also declined in proportion of the community by -7%, while children
and teens decreased more moderately (-3%);
Town of Appleton Municipal Plan 2017-2027
Tract Consulting Inc.
9
-
The 2001 median age in the community was 37.8 years, by 2006 it was 41 years, and by
2011, it was 45.8 years, slightly older than the median age of the province which in 2011
was younger than Appleton at 44 years; and,
-
The largest group (using 15-year age groupings) of the local population consist of those
in the Middle Age (45-59) group with 190 people;
-
There was a tie for second largest group between the Young Middle Age group and
Seniors (about 130 in each).
The predominance of the Middle Age group helps to explain why the number of children by
2011 sat at about the same level as 1996 and 2001 as these individuals are in the family-
oriented time of life.
The demographic trends highlight significant aging of the local population which may convey the
need for a greater land use planning emphasis on providing for a more diverse supply of seniors
housing choices, and to address varied community needs for seniors such as to provide for
expanded amenities for active living and enhanced pedestrian mobility opportunities.
While the community currently has maintained a stable number of children, the ongoing loss of
youth and young adults of childbearing age is a similar significant population dynamic; it may
only take one-generation period of time for the community to be challenged to sustain itself. In
other words, without an increased number of young families and new residents moving into the
community, the local population will continue to decrease. However, this may be offset by the
fact that Appleton is a desirable location to retire, so potential growth efforts of the Town
should be multi-faceted in targeting young families and adults, as well as the Middle Age-Senior
categories, and other persons of retirement age.
A land use planning challenge for Appleton will not only be to address the pronounced needs of
the growing number of local seniors, but also for the Town to take a long-term view to the
future and work towards continuing to enhance the beauty of the Town and offering more
housing choices for all age groups. This will enable the community maintain its population
diversity as well as make the community more stable and vibrant.
Appleton considers itself a very stable population with a high proportion of long-term residents.
This stability is slowly changing as seen in a comparison of mobility statistics between the 2006
and 2011 census information. In 2006, 86% of the population lived at the same address 1 (one)
year ago and by 2011 this was 79%; and in 2006, 75% lived at the same address 5 years ago and
in 2011, this was 54%. Of those people that moved within the 5-year period, in 2006, 92%
moved from elsewhere in the province and his changed to 52% in 2011; and 8% in 2006 moved
from another province, which grew to 48% in 2011. This means that Appleton is already being
Town of Appleton Municipal Plan 2017-2027
Tract Consulting Inc.
10
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
considered as an attractive community to people who are moving to the province, most likely
moving back after living and working elsewhere in Canada.
Family and Household Characteristics
The most recent 2011 Census Canada data provides data to further describe the family
characteristics of the residents of Appleton:
-
There are a total of 245 private households in Appleton with 210 census families;
-
There are approximately 35 persons who live alone in the community and are not
deemed to be part of a census family unit;
-
Nearly 88% of the census family households are comprised of married/common-law
couples;
-
Approximately 60% of married/common-law couples either have no children, or no
longer have children living at home;
-
There are approximately 15 lone parent families (10 female/5 male) families;
-
The most predominant size of local households is 2 persons (60%), followed by 3 person
and 4 person (19%) each), and 5 persons (2.0%); and,
-
The average number of persons in private households is 2.7.
The family structure and household statistics illustrate that 88% of all families are either married
or living common law, and additionally that the two-person household is the primary household
size. Looking at the shift in family characteristics between 2006 and 2011, it is interesting that in
both 2006 and 2011, 52% couple families were couples without children, and for couples with
children the percentage went from 32% in 2006 to 38% in 2011; and in both years 12-14% were
other configurations (single parent or 'other'). This means that during the 2011 growth spurt,
the Town of Appleton was still very attractive to families with children, as the family
composition for the households in Appleton did not significantly change. Therefore, the Town
will need to ensure that facilities and services are available to meet the needs of both the aging
population and families with children.
Education
The 2006 Census reported that approximately 66% of all local residents between the ages of 18
and 64 years have a high school diploma. Over 20% of local residents additionally have a College
diploma, and approximately 24% have trades training. Only 2% of local residents have a
university degree. The comparative provincial averages for educational attainment are
considerably higher.
Town of Appleton Municipal Plan 2017-2027
Tract Consulting Inc.
11
Employment
In 2011, 57 .0% of the total population over 15 years was in the labour force. Appleton had a
high unemployment rate (21.3% or 230 people) in 2011, representing an increase of 4% since
2006. Unemployment rate is high for men (25%) but low for women (0%), this trend existed in
both 2006 and 2011.
Of all local residents aged 15 years and older involved in the labour force, they were employed
in the following indicative occupations:
-
Sales and service -11% (35) of all employed local residents;
-
Trades, transportation, equipment operators - 19% (60);
-
Business, finance and administration - 10% (30);
-
Management - 32% (100);
-
Health - 10% (30);
-
Education, social science, government service, religion - 13% (40); and,
-
Natural and applied sciences -5% (15);
A high percentage of the labour force (32%) indicates that they are in a 'management'
occupation. As well, the 2006 Census Canada information indicated that the majority of local
residents worked outside of the community, but within the census division {65%).
Given that there are few employers in the Town of Appleton, nearest source of employment
might be the Town of Gander (20 km drive), which offers employment opportunities at shopping
malls, box stores and a wide range of regional service providers, such as the Airport, health
services, and government offices.
Income
Statistical information on Appleton residents' level and sources of income provide an indication
of the community's financial wellbeing, and the capability of the municipality to pursue varied
monetary initiatives. While income data was not available from the 2011 Census, the best
available alternative sources of data were utilized.
In 2010, there were 295 private households reporting on after-tax income, of these,
41%reported an after-tax income of $30-39,999, 25% reported between $60-79,999 and the
other income groups garnered only 5-10% (note there were no reports under $20,000}.
A comparison between 2006 and 2011 census data indicates that there was employment
stability: where most of those employed 'Worked at usual place; (in 2006 - 88% and 2011 - 95%}.
Town of Appleton Municipal Plan 2017-2027
Tract Consulting Inc.
12
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
Therefore, even though most households had a modest after-tax income between $30-39,999,
there was stability in this employment.
The median and average income levels were reviewed in order to get a better picture of typical
household incomes. Using the median income provides a more accurate picture of typical
household income, as the number is not skewed unduly by a few very high or very low values.
Looking at the median household income in Appleton, these were higher in 2005 than in 2010
for Appleton households; and in 2005 the median income was considerably higher than the
provincial median (by about $7000) but by 2010, it had dropped by the same magnitude below
the provincial median. The average income figures (only available for 2010, indicate lower
incomes compared to the rest of the province (by about $9000). There could be several reasons
for this, such as, seniors, backed by life savings, living on a pension.
Looking at the source of earnings information between 2006 and 2011 Census, Appleton
household's income from earnings dropped from 72% which was higher than the overall Census
District No. 6, and the province as a whole to 66%; correspondingly government transfers
increased from 19%, which was about on par with the District and province (20%) to 29%, quite
a bit higher than District No.6 and the rest of the province. Income from other sources only
dropped from 9% to 6%.
Table 1: Source of household income
Source of Household
2006
2011
Income
Appleton
District
NL
Appleton
District
NL
No.6
No.6
-
Earnings
72%
67%
69%
66%
67%
71%
- Government
19%
20%
20%
29%
21%
19%
transfers
-
Other
9%
12%
10%
6%
12%
10%
The planning implications of the changes to income levels and sources of income relate to the
range of services the Town needs to be able to provide to meet the needs of its residents.
Obviously as earning income decreases and dependency on government transfers increases, the
buying power of the individual is lower. For long term resident, this might simply mean that
their purchasing options have decreased; however, for other resident still looking for housing or
requiring financial for housing, the issue of affordability becomes a more critical factor.
Given that this transition in income source coincides with the aging population, it is logical to
deduce that there will be a growing number of seniors seeking affordable housing in the Town
Town of Appleton Municipal Plan 2017-2027
Tract Consulting Inc.
13
of Appleton. The housing types might range from independent living arrangements to more
institutionalized venues in order to accommodate the needs of this trend into the future.
1.4.4
SOCIAL CONTEXT
Social planning encompasses a wide range of community development considerations that
include becoming more age friendly as a community, addressing seniors' needs, pursuing youth
engagement programming and family friendly facilities, involvement with aboriginal peoples,
and fostering 'pride of place'.
It is evident that Appleton has strong community spirit with its annual Winterfest and repeated
success in the Tidy Towns program, and the fact that this small community has a full-time
recreation staff-person to co-coordinate the demand for community activities. The people of
the Town are active volunteers for the committees: Finance, Public Works, Joint Water and
Sewer {administered by Appleton), Energy Planning, Recreation, Tidy Towns, and
representatives on the Gander and Area Chamber of Commerce and the Central Waste
Management Committee (Norris Arm location).
1.4.5
LAND USE PLANNING CHALLENGES AND OPPORTUNITIES
1.4.5.1 LOCAL CONSTRAINTS AND CHALLENGES
Based on the information provided in Sections 2 and 3, there is several issues that impact
planning efforts in Appleton. These include:
-
the steep topography of the landscape in portions of the Town;
-
proximity to watercourses and the threat of flooding;
-
potential impacts of more frequent and more intense storm events from climate change;
-
an aging population;
-
overall decline in populations, particularly, the youth in the Town;
-
lower incomes and employment trends;
-
price of current housing stock prohibitive to young people; some have bought trailers in
Glenwood just to stay in the area because they can't afford a house in Appleton;
-
budgetary capability to afford large community capital projects; and,
-
limited staff resources.
1.4.5.2 SHAPING DEVELOPMENT: EXISTING PATTERNS AND FUTURE OPTIONS
The local circumstances, needs and priorities of the municipality have changed over the past
two decades, and a new and more relevant community planning approach is needed to manage
both short range and longer-term land use challenges and opportunities.
Town of Appleton Municipal Plan 2017-2027
Tract Consulting Inc.
14
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
Existing development within the community consists mainly of residential land use. Other
prominent land uses within Appleton include the Town buildings, marina and park (with a
sawmill adjacent to it) on the shore of the Gander River, and a store and the industrial park on
the Trans-Canada Highway.
Observations of existing patterns of development with varied land uses of the community are
provided in the following sections.
1.4.5.3 RESIDENTIAL DEVELOPMENT
The single detached residential home is the predominant residential housing type in Appleton.
The 2011 census data indicated that there were 295 private households, of which 80% (235)
were privately owned and 60 rented. Of these households, 74% of this stock was over 45 years
of age and 25% between 25 - 44 years. The 2011 census data also identified 5 apartments, 5
duplexes and 10 'other' residential dwelling unit types.
The following Table shows how the number of dwelling in the ten-year period between 2006
and 2016 mirrors the local population spike experienced during this similar timeframe.
Unfortunately, the complete 2016 census information is not available to allow for more detailed
analysis.
Table 2: Number of Private dwellings
Year
Total private dwellings
Occupied by usual residents
2006
226
216 (96%)
2011
265
246 (92%)
2006 to 2011 change(%)
+17%
2016
246
239 (97%)
2011 to 2016 change (%)
-7%
More recently, the residential development of Appleton Estates was completed containing 14
serviced lots. These consist of larger lots with 21 m frontage and higher end homes. All the lots
were sold by 2016. At the public consultation, residents expressed concern that this type of
large lot development in the heart of the community might no longer be viable under the
current economic conditions. However, at the same time the opinion was expressed that there
was interest in estate-style lots for high end homes in the vicinity of the former 'Glen Eagles'
Town of Appleton Municipal Plan 2017-2027
Tract Consulting Inc.
15
resort area by both local and Gander residents looking for space and a view over the upper
Gander River towards Gander Lake.
Other undeveloped portions and neighbourhoods of the community similarly possess potential
for future development. The Municipal Plan will map and designate these locations. While the
flood risk zone bordering the Gander, River is somewhat of an impediment to waterfront
residential property development, the Municipal Plan review and update will explore
opportunities to develop at higher elevations, and thereby possibly enable the protected
waterfront lands to become a shared community asset.
The Town is seeking to develop additional residential units to accommodate large lot, single-
family dwellings as well as higher-density seniors housing. For example, the Town is exploring
future residential opportunities on the forested lands located in the central area of town (said
lands are currently designated as 'urban development'). The subject site possesses potential for
orderly and sequential growth through a phased development. Phase One, intended for seniors
and for affordable housing types, is targeted to occur on lands divested by Newfoundland and
Labrador Housing (approximately 30 acres) to the Town. Currently, there are more than 60 local
people looking for senior's housing units.
Phases Two and Three could offer a variety of residential lots for NL expatriates and others
wishing to pursue a country lifestyle offered by the site's location.
During the site visit, Tract considered current residential and other land use developments
trends and patterns. Our site visits confirmed opportunities to economically use of the available
water and sewer services to provide development opportunities on the land supply within the
Planning Area boundaries of the town. This can be accomplished through infill residential
development, or by the use well designed smaller lot size homes, and provision for compact lot
zone categories within the Development Regulations. Another option is whether there is an
opportunity for residential care backyard cottage style dwelling units for seniors with the desire
to age in place.
During consultations, participants estimated that an entry-level house would be $150,000;
which is considerably lower than the average current house price of about $300,000+. As
seniors sell their homes in order to downsize and find more age-friendly, lower-maintenance
housing, their homes (at $300,000+) are not affordable by young, moderate-income, first-time
homeowners. So, these homes become available to a wider regional/provincial market of
mature homeowners wishing to retire closer to services. While this brings in new residents, it
does not bring in children.
Town of Appleton Municipal Plan 2017-2027
Tract Consulting Inc.
16
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
Smaller lots and homes were explored during the public consultations with the community and
business owners as an opportunity of offer accessible housing to moderate-income families
wishing to purchase a home in the community. The strategic siting of higher density two unit
and other apartment residential forms could provide for young families. However, there were
strong concerns expressed at the public sessions regarding how these forms of housing would fit
within the overall country-living character of the town. Based on the discussions with the
community it would appear that housing that looked like the following examples might be
acceptable to residents as these smaller homes (46 m2- 120 m2 with 14 m frontage), if situated
with appropriate side yards that would emulate the existing neighbourhood character.
167 m2 (approx. 1800 ft2)
111 m2 (approx. 1200 ft2)
149m2 (approx. 1600 ft2)
The housing form that was expressly not wanted by the residents that attended the meeting
was the 'mini-home', particularly if sited on the lot with the side view facing the street, which
would maximize use of expensive servicing. An example is shown below.
Town of Appleton Municipal Plan 2017-2027
Tract Consulting Inc.
17
These issues and concerns can be addressed in the updated Municipal Plan and Development
Regulations which can establish the necessary lot size, permitted uses, housing form, site design
and zoning requirements to support and facilitate these desired developments, as well as to
address planning challenges such as tree removal, development amenities, walking trails, and
identification of thresholds to enable movement from one development phase to another.
The future Town growth options should support a connective and orderly build out without
incurring the significant capital infrastructure costs and on-going operational costs for Town
serviced lands.
1.4.5.4 COMMERCIAL/EMPLOYMENT GENERA TING DEVELOPMENT
The Town has recognized the need for commercial and employment generating industrial
development in the community. As further business growth occurs, it creates a 'domino effect'
which will encourage additional business interest and expansion; provide for more employment,
retail and personal services, commercial products and shopping choices for local residents; help
to enlarge and expand the mix of local land uses; and to expand the Town's tax base. Business
growth also allows the community to become more complete whereby its residents have
increasing opportunity to live, to shop, to work and to pursue recreation, and to grow old
without leaving the community.
The Town is taking initiative to encourage commercial and employment generating business
growth. For example, the Town has plans to expand the existing industrial park, which currently
has ten serviced lots {100'x200'), which sell for $10,000 on the condition that building is started
in one year after purchase. The Town has applied to the Provincial Government for Crown land
for 5 more pieces of property. An option for the Town to consider is to have a stipulation that
the development be 'substantially completed' within 2 or 3 years after lot purchase (it is easy to
start a building by pouring a foundation, but the what is really required is a completed building).
Taxes on these lots are currently $600/year.
Town of Appleton Municipal Plan 2017-2027
Tract Consulting Inc.
18
I
I
I
I
I
I
I
I
I
I
I
I
I
I
With regard to commercial development, the Town's inventory is low. There is one convenience
store, Clover Farms, located on the Trans-Canada Highway, which has groceries and a liquor
store (no fuel). The objective to attract a full-service gas bar location to the community is on
Appleton's radar. In the past, there was an outdoor market with local fresh fruit located
adjacent to the store; however, as the local farmer is in the process of retiring and selling the
farm, this has been discontinued. Nonetheless, the farm, which is located close by, is still a
viable operation for local fruit production and has excellent prospects for renewal.
There is also a high-end gift/home decor shop on the Trans-Canada Highway called 'Tiffany's'
which has been a mainstay in the community for over 20 years; the clientele are mainly people
passing by on the Trans-Canada Highway. This location, just off the main entrance to the
community, was also the location of a florist shop with two greenhouses and an ice cream shop;
both are now gone. This shop faces onto the Trans-Canada Highway and behind it is the main
developed playground (a former baseball pitch) that contains an ice rink and playground items.
To augment the local commercial/ industrial portfolio, there is a construction operation facility
located on the Trans-Canada Highway (next to Tiffany's) that was formerly a gas station - one of
the reasons why the Trans-Canada Highway was constructed through the community and not
around the built-up area of the town. There was some discussion regarding moving this
operation to the industrial park, but this was unsuccessful and the current upgrades to the
building indicate that a re-location is unlikely in the near future.
As well, there is additionally a family-owned sawmill located next to the municipal park; the
sawmill has downscaled over recent years. There is consideration of a proposal to provide the
sawmill operator some land in the industrial park or elsewhere in order to expand the
community park space adjacent to the Gander River.
To address future commercial development, the Town has acquired land on the north side of
the Trans-Canada Highway; however, as a designated Protected Road, there are some
restrictions regarding site development. The Municipal Plan will explore highway commercial
opportunities for this location.
The Plan Review assessed the varied commercial locations, including the industrial park that is
poised for expansion and assessing the potential for coordinated commercial growth. Our work
includes an understanding of current zoning language for commercial and industrial growth with
respect to permitted uses, regulatory requirements, and possible suggestions such as identifying
and designating strategic vacant commercial land parcels for future development, identifying
guidelines for site landscaping, signage, parking layout and building design, or increasing the
Town of Appleton Municipal Plan 2017-2027
Tract Consulting Inc.
19
minimum site coverage requirement to facilitate larger buildings on serviced commercial and
industrial lots to enable for higher assessed values and greater taxation revenue: larger buildings
typically result in more local employment opportunities.
1.4.5.5 PUBLIC USE DEVELOPMENT
Local social infrastructure within Appleton includes the Community Centre, which houses the
Town Office and Council Chambers. The Centre also has a fitness facility, banquet hall and bar,
and a sauna. It is the community focal meeting place for social activities and events ranging from
fitness to weddings/showers/anniversaries, dances, card games, quilting for seniors, etc. The
facility is well used, well maintained and the pride of the community. The Town depot is located
at the rear of the lot.
1.4.5.6 COMMUNITY AMENITY SPACE: PARKS, TRAILS, TOURIS AND
LANDSCAPED PLACES
Within its Planning Area, the Town is well endowed within natural open space, forest and access
to the Gander River and its watershed. From a community planning perspective, it will be
important through the Plan preparation process to identify, designate, map and formulate
policies to preserve such valued natural and environmental assets as non-developable, and to
illustrate options for future expansion and development of the community's open space and
walkway trail system.
The Municipal Park and playground represents the jewel of the Town's developed recreational
amenities. The Town has devoted capital funds to the Park, it has been enhanced and expanded
and is well used. The addition of the Peace Monument for example, provides a venue for
Canada, 9/lland Remembrance Day Services and tourists visit to view the site. In the recent
award-winning musical, 'Come From Away', the role played by the Town and particularly the
Mayor further deepens the significance to this memorial.
Further south along the shoreline, near the Water Intake for the Town, there is the 'club house'
for the Central NL Dragon Boat team that is organizing a major event taking place during the
summer of 2017 bringing in teams from across Canada for a 3-day race on Gander Lake on the
July 1 weekend.
The Trans Canada Trail, which is the T'Railway provincial park, passes through the community
and represents a further recreational asset to the community. The Trail provides opportunities
for the Town to organize events and activities around the snowmobile and ATV industry. The
T'Railway is informally used by residents for access to the backcountry to enjoy outdoor
Town of Appleton Municipal Plan 2017-2027
Tract Consulting Inc.
20
I
I
I
I
I
I
I
I
I
I
I
I
activities or access cabins and cottages. As well, at any time of the year local residents use the
T'Railway as a hiking/walking/running trail.
There are also varied walking trails within the Town, which will help to address and build upon
current and future active mobility opportunities for seniors. Residents indicated that they
consider the streets to be very safe for walking/running; and during the summer, speed bumps
are put on the streets where children are known to reside. The local system of Nordic ski trails
provides for further inventory of outdoor recreation activity.
Enhanced public access to the Gander River will be a major theme of recreational development
within the updated Plan, as well as advancing policy recommendations for outdoor recreation
tourism marketing and creation of additional public places of beauty throughout the
community. At the public consultation session, there was considerable interest expressed in
enhancing the access to the Gander River as a salmon river by improving trails to the fishing
pools and providing boating services. The possibility of an RV site for anglers was proposed,
based on the success on such facilities on the Northern Peninsula.
1.4.6
ENGINEERING INFRASTRUCTURE AND SERVICES
Land use planning brings together the geography of the land with the servicing capacities and
capabilities of the Town's water, sanitary sewer, storm water management, road network, and
waste management systems.
1.4.6.1 WATER
The Town of Appleton shared its water with the Town of Glenwood (who pay for the service).
In 2017, this is expected to cost the Town $83,100. The Town is fully serviced by water.
1.4.6.2 SANITARY SEWER
In 2006, the Town of Appleton with the Town of Glenwood in partnership with Abydoz installed
a wetland sewage system that eliminated the disposal of raw sewage into the Gander River. The
Town passed a resolution of Council stating that Council does not permit un-serviced lots on
septic systems.
The Town of Glenwood supplies the sewer service and the Town of Appleton pays for the
service. The main sewer line follows the main road to a lift station that connects to the Abydoz
facility in Glenwood. In 2017, this is expected to cost the Town $37,120.
The current sewer system is designed for 2500 users and currently it has 1600 users.
Town of Appleton Municipal Plan 2017-2027
Tract Consulting Inc.
21
This sewage system project won the 2010 Watershed Award (Atlantic Region) presented by the
Insurance Bureau of Canada and the Federation of Canadian Municipalities, and was recognized
for its positive environmental impact by the Professional Engineers and Geoscientists of
Newfoundland and Labrador.
1.4.6.3 ROADS
The main (collector) streets have a paved surface that is 15-18 feet wide (5-5.5 m); and the
residential neighbourhood streets are 14 feet (4.2m) wide. The Town has no sidewalks and
Council have indicated that they do not want sidewalks; however, this presents a question
regarding mobility within the Town.
Collector Roads: River Road, Bowater Drive, and Richard's Road
Neighborhood Residential Roads (off the collector roads):
-
Country Lane
-
Circular Road
-
Steele Avenue
-
Chippy's Lane (named after Zipporah Steele, an influential individual in the founding and
development of the Town, whose nickname was 'Chippy')
-
Lakeview Place
-
Mill Road
-
Carberry Lane
-
Simms Road
- Jack Wall Crossing
-
Lock Place
-
Glen Eagles Way
The Town dedicates significant expenditures annually to servicing the local road network. For
example, the costs for roads overall in 2017 are anticipated to be $67,230.32. This can be
broken down to $41,930.32 for streets and roadwork; $10,000 for snow removal; and, $15,300
for street lighting.
The Trans-Canada Highway bisects the community and community access is via the collector
streets. The TCH is designated a protected road under the Protected Road Zoning Regulations of
the Urban and Rural Planning Act, 2000; and access to the TCH can only be authorized by the
Department ofTransportation and Works; furthermore, the Building Near Highways Regulations
administered by that department apply.
Town of Appleton Municipal Plan 2017-2027
Tract Consulting Inc.
22
I
I
I
I
I
I
I
I
I
I
I
I
I
1.4.6.5 HOUSEHOLD WASTE MANAGEMENT
The Town stopped using the dump in Glenwood in about 2001 and brought household waste to
the Gander waste disposal site with a tipping fee of $25.00 per household/year (2011). The
Norris Arm Regional Waste Management facility opened in 2012 and now services the region.
In partnership with the school in Glenwood, the Town of Appleton supports recycling, by
allowing residents to bring recyclables to a collection site at the town hall.
1.4.6.6 FIRE PROTECTIONS SERVICES
The Towns of Appleton and Glenwood partner on fire protection services through a Volunteer
Fire Brigade.
1.5
KEY FINDINGS AND COMMUNITY VISION
1.5.1
KEY FINDINGS OF BACKGROUND RESEARCH
Highlights of the background report include the following observations and considerations:
-
The location of Appleton offers an and enviable combination of quality country-living with
Trans-Canada Highway and Gander International Airport connectivity to regional services,
employment opportunities, and international destinations and markets;
-
The Town needs to continue to build on its strong regional context with communities such
as Gander and Glenwood to attract a cross section of new residents and new businesses;
-
Appleton residents demonstrate an attachment to their community, and a 'pride of place'
with strong civic participation on community committees, social events and support for the
community recreation facilities, both indoor and outdoor;
-
The Town actively advocates their slogan 'Room to Grow' in all publications and initiatives,
however the 1996 Municipal Plan is outdated and does not foster growth opportunities;
-
The community has traditionally had a stable population of long-term residents with a cross-
section of families with children and seniors, but that is starting to change as the population
ages and these needs are reflected in the demand for seniors housing and community
services and a corresponding loss of young people in the child-bearing age group;
-
Household incomes are decreasing and the unemployment has increased, therefore, there is
a need for housing that is suitable for both young families and seniors;
-
Focusing on retaining and attracting new population growth within the growing Central
Newfoundland area provides opportunity for Appleton to expand in a manner that will
maintain the traditional mix of age groups in the community;
Town of Appleton Municipal Plan 2017-2027
Tract Consulting Inc.
23
-
Expansion of the local tax base is required to enable Appleton to maintain the current level
of community services and evolve into a more complete community;
-
Growing the industrial tax base through development of the Industrial Park and the
acquisition of additional lands for expansion of these facilities needs a coordinated, phased
approach to maximize land use and commercial opportunities;
-
Growing the commercial tax base of the community along the Trans-Canada Highway is
another opportunity to expand the tax base for the community;
-
The Trans-Canada Highway bisects the community which is also breaks up the continuity of
the community; however, it can offer an opportunity for commercial development;
-
The Town is proud of its local history with forestry, transportation (railway and TCH) and the
out-of-doors, but the Town expressed interest in development of a tangible means to
celebrate this history in the built community;
-
The natural setting of the Town on the Gander River is a scenic asset with economic
development potential for boating, salmon angling, trails, and parks; and,
-
The proximity of the T'Railway provincial park also provides for a variety of recreational
activities.
The resulting Municipal Plan and Development Regulations will provide the Town of Appleton
with the tools to help manage future change. The Municipal Plan provides for a far-reaching
policy framework to guide the Town of Appleton in pursuing its sustainable goals and objectives
for the future. The policies represent both challenges and opportunities for the Town. They will
enable the community to achieve more effective economic, environmental, and social
sustainable success.
1.5.2
PUBLIC CONSULTATON
The consultation process involved discussions and meetings with Council, Town staff,
stakeholders representing business and volunteer organizations, a formal public meeting, and
an online survey.
On May 31, 2017, a community public consultation session was held between 7 p.m. to 10 p.m.
at the Town Hall in Appleton. Residents were contacted via the Town email service, posters and
a press release posted on the Town website and Facebook page. As well, a Notice of the
meeting was published in the Gander Beacon. About 25 individuals attended, including the
Mayor, members of Council, recreation committee volunteers, and business people including a
farmer, the President of the Gander and Area Chamber of Commerce, and local residents.
Town of Appleton Municipal Plan 2017-2027
Tract Consulting Inc.
24
I
I
I
I
I
I
I
I
I
I
I
I
I
A survey was also prepared and residents could participate via the Town website. The survey
was closed on June 14, 2017 and there were 42 respondents that represent 17% of the private
households in the community. A full copy of the result is included in Appendix.
Almost half of the respondents were long-time residents (20-50 years) and 43% resided in
Appleton 5+ years; so, there was minimal response from newcomers. Nonetheless, these
individuals indicated an overwhelming level of satisfaction with living in Appleton (27%
extremely/46% very satisfied).
However, generally their responses to the questions were more moderate, never strongly
agreeing or disagreeing with positions or statements in the questionnaire. The top three factors
to improve the community were storm sewers management, condition of the roads and
protecting natural features and landscapes. The second tier of concerns included developing
sense of community, working with other communities, more citizen engagement and creating
jobs. The third tier consisted of more parks, walking trails, opportunities for recycling, more
cultural and social events and the creation of jobs. The last tier was more residential options,
improving walkability and lastly, at 'somewhat important' - more shopping.
When questioned about housing, respondents did not agree (somewhat disagreed) that there
was enough housing for seniors, affordable housing for entry-level homeowners or low-income
residents, or enough residential land for the next 10 years. They were generally in agreement
that there was enough commercial and industrial land and that the Town needed to offer more
opportunities for seniors housing choices and tourism, including access to the waterfront. They
agreed that there needed to be clear, enforceable rules; development of a marina, and the most
agreed upon item was that the Town should encourage 'green' technology.
The general comments in the open-ended portion of the survey allowed individuals to elaborate
on the views they expressed in the more structured part of the survey. Accessibility issues and
upgrades to equipment in the playgrounds as well as roads, was mentioned; also, development
of trails suitable for various users. The marinas in Pasadena, Bishop Falls and Lewisporte with
associated facilities were cited as desirable examples to follow.
Overall, the recurring theme of the natural beauty of the Appleton setting was expressed
repeatedly throughout the community interviews, public consultation and the resident survey as
a value to be protected. This will be an important value at the heart of the renewed Municipal
Plan and Development Regulations for the Town of Appleton.
Town of Appleton Municipal Plan 2017-2027
Tract Consulting Inc.
25
1.5.3
THE COMMUNITY VISION
The purpose of a Community Vision Statement is to express the local values and future
aspirations of how a community views itself in the future. The Vision thereby identifies the
guiding principle for how the overall community planning objectives and land use policies of the
Municipal Plan are to be developed. The renewed Town of Appleton Community Vision
Statement was developed after the community public consultations, stated as follows:
"The Town of Appleton is a progressive community that has "Room to Grow" in a manner that
preserves its historic quality of country living setting and lifestyle, yet contributes to the long-
term economic and environmental sustainability of the community in the future."
The Town of Appleton strives to preserve the family character of the Town by creating
residential opportunities to retain and attract young families, allow for seniors to 'age in place',
and generate tax revenue from high-end estate lots where environmentally and economically
viable.
The Town of Appleton intends to explore opportunities for cultural, heritage, and tourism
related development focusing on Gander River and Gander Lake featuring interpretation,
activities and facilities for boating, salmon-fishing and other historical and recreational
interpretation.
The Town of Appleton seeks to create commercial and industrial opportunities along the Trans-
Canada Highway to attract new investment in the Town, which will support the social,
recreational, cultural and environmental initiatives of the community."
Town of Appleton Municipal Plan 2017-2027
Tract Consulting Inc.
26
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
2.0
COMMUNITY-WIDE GOALS, OBJECTIVES AND
POLICIES
There are municipal planning policies that apply throughout the Municipal Planning Area for the
Town of Appleton. Recognizing and building on the considerable innovation, energy and vision
that the Town of Appleton has shown over the years, the updated plan integrates the work of
the 2011 Integrated Community Sustainability Plan (ICSP) into the new Municipal Plan. The
community-wide policies have therefore been organized under the headings for the pillars of
sustainable development, namely:
1. Environment
a.
Environmental protection
b. Sustainable development
c.
Responsible management of natural resources
2. Economic
3. Social
4. Cultural
5.
Municipal Governance
a.
Administration
b. Land Use and Development
2.1
ENVIRONMENT
2.1.1
GOALS
To protect the natural environment, including natural drainage systems, wetlands, wildlife, plant
and fish habitats, and responsibly manage community-related and natural resource
development impacts for the health, aesthetic, economic and recreational benefit of the Town
of Appleton.
2.1.2
OBJECTIVES
A. Protection of the natural environment, such as the soil, water, vegetation, air, wildlife
habitats and ecosystem integrity;
B. Promotion of sustainable development activities, such as, waste management, renewable
energy production;
C.
Responsible management of natural resources, such as, forestry, mineral resources, wildlife
and fish, water, agriculture.
Town of Appleton Municipal Plan 2017-2027
Tract Consulting Inc.
27
2.1.3
ENVIRONMENTAL POLICIES
2.1.3.1 ENVIRONMENTAL PROTECTION POLICIES
It is the policy of Council to:
Protected Water Supply
1. Establish a Protected Water Supply overlay on the Land Use Zoning map of the Development
Regulations to recognize this designation under the Water Resources Act, 2002 and
administered by the Water Resources Management Division. Work with the Gander Lake
Watershed Management Committee to ensure that development and land use activities in
the Town of Appleton is compliant with the Gander Lake Protected Watershed Management
Plan which includes a considerable area of the town located in the Protected Water Supply
Area of Gander Lake under the Environment Act (Newfoundland and Labrador Regulation
82/100).
Flood zone
2.
Respect the restrictions of the flood zone identified the provincial Policy for Floodplain
Management, such that, no residential, and very limited other built-up development, will be
permitted in a 1:20 year floodplain; and any building permitted in a 1:100-year floodplain
will be subject to special restrictions and conditions. These areas are identified on the
Future Land Use Map 1. Council will not permit development vulnerable to flooding in areas
known to be subject to local flooding;
Water bodies
3.
Protect rivers, streams, ponds, wetlands, riparian areas, and shorelines from pollution and
development by implementing measures such as:
-
Maintaining, where possible, existing vegetation along banks and shorelines;
-
Ensuring conformance with requirements of the Water Resources Management Division
of the Provincial Government
-
Where fish habitat is affected, requiring appropriate approvals from Fisheries and
Oceans Canada;
-
Activity permitted in the vicinity of a watercourse within a Protected Water Supply Area
will be in compliance with the 'Policy for Land and Water Related Development in
Protected Public Water Supply Areas' administered by the Water Resources
Management Division;
-
Subject to the appropriate approvals and reviews, only roads, public services and
utilities, trails and accessory uses, and uses requiring direct access to a body of water
may be permitted in the 30 m buffer areas; Note that wharves, boathouses, slipways
Town of Appleton Municipal Plan 2017-2027
Tract Consulting Inc.
28
I
I
I
I
I
I
I
I
I
I
I
I
Slopes
and breakwaters which require direct access to a body of water must adhere to the
guidelines provided by the Water Resources Management Division;
4. Restrict development in environmentally sensitive areas such as steep slopes and areas
prone to landslides and rockfall. Discourage development in areas with slopes greater than
15 percent, recognizing that development in such areas can result in environmental damage
and higher costs for servicing and maintenance. Before approving development of a site
having a slope greater than 15 percent, the Authority shall require the submission of a
review of the development proposal by a certified engineer, landscape architect or similar
professional. The review shall evaluate the adequacy of site grading, drainage and
landscaping and the potential of the development to cause erosion onto and pollution of
adjacent development and lands and bodies of water receiving run-off from the site, and
other similar matters;
Soil
5. Prohibit removal of topsoil or sods except with the approval of Council.
6. Permit development only on lands having soil and drainage conditions which are suitable for
the proposed uses.
Vegetation/Landscaping
7. Include conditions related to landscaping in new subdivision designs, including preservation
of existing trees onsite; particularly as a buffer along the back of lots.
Environmental Awareness
8. Create partnerships and initiatives aimed at changing environmental attitudes, awareness
and promoting projects which will enhance the built environment, for example, fostering a
community/family environment by promoting greenbelts, passive parks and walking/hiking
trails; and to promote a regular community "clean-up" program.
Climate Change Impacts
9. Take into consideration available data regarding climate change which is expected to result
in more precipitation and more frequent extreme weather events that may result in
increased flooding, sea surge and coastal erosion. These factors should be considered when
allocating land for future developments that are in close proximity to a river, floodplain or
coastline;
10. Seek funding to assess climate change impacts on the Town of Appleton.
Town of Appleton Municipal Plan 2017-2027
Tract Consulting Inc.
29
Endangered Species
11. Take into consideration that, because Rusty Blackbird, a provincially designated Vulnerable
Species under the Endangered Species Act, 2001 and it has been reported to occur in the
proposed Municipal Planning Area; Council will consider the recommendation from the
Wildlife Division of the Department of Fisheries and Land Resources that a 50 m minimum
undisturbed natural vegetated green belt be a standard requirement when dealing with any
type of land use activity; wider green belts are suggestl:!d when bordering land uses include
for example agricultural practises.
12. Establish greenbelts in order to maintain landscape connectivity. These green belts should
be connected to forested areas or other habitat patches to create travel corridors for
various wildlife species. Council may require a minimum percentage of forest cover to be
maintained during lot clearing, for example.
13. After consideration of potential impact on wildlife, whenever possible, Council will include
conditions to developments which will restrict vegetation clearing to take place outside the
May 01 to July 31 period (some raptors start breeding in March) as disturbance can be most
detrimental during that sensitive breeding/ young rearing period.
Archaeology
14. Any future developments on undeveloped lands within the town's planning area and
paraticularyly adjacent to the water's edge should be referredto the Provincial Arachaelogy
Office.
2.1.3.2 SUSTAINABLE DEVELOPMENT POLICIES
It is the policy of Council to:
Inter-governmental compliance and cooperation
1. Provide municipal services at environmentally acceptable standards, which may require
referrals to federal and provincial departments and agencies having jurisdiction for the
protection of such environmental considerations as, emissions, effluents, vegetation,
habitat, wildlife, fish, waterfowl, public health and safety.
Waste Management
2. Continue the Town's initiatives in waste management and recycling and consider
community composting;
Town of Appleton Municipal Plan 2017-2027
Tract Consulting Inc.
30
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
Renewable energy
3. Promote the development of industries that use clean renewable sources of energy;
4. Initiate implementing private (not commercial) renewable energy sources at the discretion
of Council subject to meeting Provincial and Federal regulatory requirements, in particular
those applying to safety and environmental concerns, such as ice loads and assessment of
potential hazards or negative impacts for adjacent or nearby property owner and specific
development conditions for development of wind turbine(s) for private use may include, but
not be limited to the following; size of the wind turbine or its generating capacity, height of
tower; number of wind turbines; setbacks from existing structures, side yard and rearward
standards; requirements for screening or buffering; and scale of development;
Storm Water
5.
Require development applications to include information regarding grading, ditching, and
landscaping.
6.
Evaluate significant alterations to the natural environment (such as changing the drainage
pattern or removing vegetation) during the evaluation of development proposals.
7. Alterations which will adversely affect adjacent property or shall not be permitted. Where
there is concern that development may contribute to excessive storm-water increases,
Council may require developers and landowners to:
(a) Set aside open space areas where storm-water can be discharged to naturally infiltrate
into the soil.
(b) Maintain vegetated buffers between storm-water drainage outlets and watercourses to
minimize direct discharges into watercourses.
(c) Preserve existing trees or plant additional trees and shrubs to promote soil infiltration
and capture sediments.
( d) Channel runoff to gardens and low-lying areas on the development site and on
individual lots.
(e) Take advantage ofthe topography to reduce storm drainage, for example, retain natural
depressions in the landscape to accumulate runoff and promote soil infiltration.
(f) Re-establish vegetative cover immediately on gravel surfaces, banks, drainage ditches,
and other areas disturbed by construction activity
2.1.3.3 RESPONSIBLE MANAGEMENT OF NATURAL RESOURCES POLICIES
It is the policy of Council to:
1. Protect and enhance agricultural enterprises and facilitate local commercial opportunities,
such as a farmer's market, and ensure compatible adjacent development in order to
minimize potential conflicts.
2.
Ensure that forestry activities are compatible with the other uses in the Resource zone.
Town of Appleton Municipal Plan 2017-2027
Tract Consulting Inc.
31
3. Allow mineral exploration {development) as discretionary use in all zones, provided that the
work is subject to conditions appropriate to the use zone and which address any other
concerns specific to the location.
4. Permit mineral working as a permitted use in areas zoned Rural and at least a discretionary
use in other relatively undeveloped zones in order to ensure that there is adequate space for
quarrying within the Planning Area to meet present and future demand for construction
aggregate.
5. Allow for future mineral exploration and development opportunities providing that the
Council is consulted on all proposed developments associated with these activities.
6.
Ensure that development of resource lands does not block future access for other
opportunities for land use and development.
2.2
ECONOMY
2.2.1
GOALS
To grow the economy in the Town of Appleton through expansion of commercial, industrial,
tourism and residential development.
2.2.2
OBJECTIVES
1. To increase the tax base to facilitate delivery of community services and provide local
employment
2.
Encourage the development of additional employment opportunities to serve the present
and future population;
3. Promote the Town as a tourist attraction and encourage travelers to visit Appleton.
4. Attract new business to the Town of Appleton building on the location and transportation
assets of the community in a regional context;
2.2.3
POLICIES
It is the policy of Council to:
1. Protect the continued operation and expansion of existing businesses through appropriate
land use policies and provision of community services;
2. Designate and zone land for commercial, industrial and tourism related development in
order to attract new businesses to the Town of Appleton;
3. Promote the expansion of the Industrial Park in the Town of Appleton as an attractive
business location; and,
Town of Appleton Municipal Plan 2017-2027
Tract Consulting Inc.
32
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
4.
Develop facilities and attractions in order to have services of interest to tourists visiting
Appleton;
,
2.3
SOCIAL
2.3.1
GOALS
To provide for the health, safety and well-being of the residents of Appleton.
2.3.2
OBJECTIVES
1. To promote the health of the community by enhancing active living opportunities, such as
trails and walkways, and particularly increased mobility for a growing population of seniors;
2. To continue to provide access to recreational and social activities at the Town Centre for
residents of all ages;
3. To continue to foster community spirit and a strong 'sense of place' expressed by the
residents of the Town by hosting community events involving residents of all ages;
4. Expand the volunteer base for the Recreation Commission and provide additional resources
as required;
2.3.3
POLICIES
It is a policy of Council to:
1. Preserve of scenic viewpoints and ensure long-term stewardship of the aesthetic landscape
of the Town that gives it the country-living lifestyle valued by residents and visitors alike;
2. Enhance public access to natural areas and open space;
3. Implement traffic calming measures on collector streets for the safety of walkers, runners
and cyclists of all ages who share the street with traffic;
4. Prepare a recreation plan that involves strong public involvement to determine the best
options for development and/or expansion of recreation lands;
5. Develop walking trails along shoreline and the T'Railway Provincial Linear Park and other
areas of the Town;
6.
Faciliate public participation in the planning of recreational open space lands and encourage
events such as festivals, sporting events, and other attractions.
7. Continue the multi-functional use of existing community buildings {Town Centre).
8. Promote the upkeep of residential properties, businesses, and institutions; encourage the
repair or removal of dilapidated buildings and structures; and prohibit indiscriminate
Town of Appleton Municipal Plan 2017-2027
Tract Consulting Inc.
33
dumping. Council shall encourage businesses and contractors to store their materials and
heavy equipment at the rear of their property or screen it from view.
2.4
CULTURAL
2.4.1
GOALS
To develop physical interpretative facilities to share the cultural heritage of the Town of
Appleton.
2.4.2
OBJECTIVES
1. To use cultural interpretation for the purposes of enhancing community identity;
2. To develop cultural resources that can provide a foundation for tourism product, and,
3. To develop a strategy for a program for culturally-themed events, such as arts and crafts or
aboriginal themes that would bring in participants from the region and beyond.
2.4.3
POLICIES
It is a policy of Council to:
1. Develop a strategy for cultural interpretation resources and facilities which would document
current resources, artifacts, scope out options for action and additional materials, research
sources funding and document resources required to achieve their objectives.
2.5
MUNICIPAL GOVERNANCE
2.5.1
GOALS
1. The Town of Appleton seeks to provide accountable, fiscally responsible, municipal
governance that continues to embrace changes needed to preserve the character of the
community valued so highly by long-term and new residents and visitors alike.
2. To administer the existing built community and manage future growth in a manner that
ensures land use compatibility, orderly development and the economic use of municipal
services to achieve balanced a balanced and attractive community.
2.5.2
OBJECTIVES
1. To provide municipal administration and services effectively, efficiently, and equitably to all
residents, in a transparent manner and within the fiscal capacity of the Town.
2. Encourage strong public interest and participation in municipal governing processes, including
Town of Appleton Municipal Plan 2017-2027
Tract Consulting Inc.
34
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
Council elections, committee activities, and public participation in decision-making.
3.
Deliver municipal administration and services effectively, efficiently, openly, and within the
Town's fiscal capacity.
4. Encourage strong public interest and participation in municipal governing processes, including
Council elections, committee activities, and public participation in decision-making.
5. Deliver municipal administration and services effectively, efficiently, openly, and within the
Town's fiscal capacity.
6. Encourage a more diversified economic base to generate more revenues through business
taxes.
2.5.3
POLICIES
2.5.3.1 ADMINISTRATION
It is the policy of Council to:
1. Manage municipal expenditures and revenues so as to provide necessary municipal services
within a framework of long-term financial stability.
2.
Govern the Planning Area of the Town in a manner that is in compliance with relevant
legislation such as the Municipalities Ac, 1999t and the Urban and Rural Planning Act, 2000.
3. Collaborate with other municipalities in the Region, government, community organizations,
and the business community to facilitate opportunities to improve local governance and
municipal services;
4. Manage municipal expenditures with restraint, aiming for maximum return on investment.
5. Manage the municipal debt, considering the Town's ability to meet its expenditures over the
long term.
2.5.3.2 COMMUNITY-WIDE LAND USE AND DEVELOPMENT
It is the policy of Council to:
Compliance
1. Ensure compliance of land use and development within the Municipal Planning Area
boundary with the policies and land use classes of the Municipal Plan and Future Land Use
Map, and the conditions and standards set out in the Development Regulations, subject to
all relevant Federal and Provincial legislation, regulations, policies and guidelines.
2.
Establish of a revised development application review process to enable Council to more
comprehensively evaluate, involve the public, and consider alternatives during the review
process of development proposals.
Town of Appleton Municipal Plan 2017-2027
Tract Consulting Inc.
35
Existing non-conforming use
3.
Protect and control existing non-conforming uses: Nothing in the Plan shall affect the
continuation of a use which was legally established on the day that this Plan is registered by
the Minister of Municipal Affairs and Environment, except as outlined in Section 108 of the
Urban and Rural Planning Act, 2000 regarding discontinuance and resumption of use,
alterations, repair.
Municipal and public utilities
4. Facilitate access for municipal and public utility works: Municipal services and utilities, such
as telephone, pollution control and electric utilities, are permitted uses in all use
designations, provided no adverse effect on adjacent land uses is created. In this regard, the
size and appearance of such works must be in keeping with adjacent uses and provision shall
be made for buffering in the form of landscaped areas between uses.
Development to front on publicly maintained road
5. Require all development to have front onto a publicly-maintained road: All development
must front onto on a publicly maintained road (provincial or municipal) and have
independent, approved access; however, with the exception of a development within a
Comprehensive Site Plan where fronting onto a road may conform to an internal road plan.
The rationale for this is that development that does not front onto a publicly-maintained
road creates public health and safety liabilities which may result in the Town being required
to fund the provision of services to unplanned development at a cost to the taxpayer;
Infill development
6. Encourage infill development in areas served by municipal water and sewer services.
Council shall review infill development to ensure:
a. the type, scale, massing, and design of the development is generally appropriate
to the neighbourhood;
b. preservation of side/back/front yards for public safety requirements;
c.
Building line setbacks shall conform to the existing development pattern; and,
d. adequate provision is made for light, privacy, and amenity.
Comprehensive Site Plan
7. Consider development as a comprehensive site plan. A residential, commercial or industrial
development containing one or more single or individual developments (i.e., condominium
or townhouses which can be sold as separate units or a shopping complex containing
separate retail units which leases individual spaces) may be treated as a single development
where services are to be provided and maintained privately and internally. It must front
onto on a public road and meet the Town standards for roads and servicing. If municipal
services are not feasible, the provision of on-site services must meet requirement of the
Town and provincial agencies, in particular, Water Resource Management Division and
Town of Appleton Municipal Plan 2017-2027
Tract Consulting Inc.
36
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
Service NL. The Development Regulations will specify requirements for a Comprehensive
Site Plan.
Character of town and compatible development
8. Preserve the rural character of the Town by protecting natural areas such as drainage
courses, shorelines, and steep slopes are protected from development;
9.
Preserve scenic views of the shoreline, ponds and hills, recognizing their value to residents
and visitors for recreation and tourism;
10. Require that non-residential land uses located near residential areas are developed in a
manner that is compatible with the neighbourhood and minimizes potential nuisance
factors, such as, the impact of traffic, noise, lighting, and signage on adjacent residential
areas. Where necessary, screening will be required through the provision of trees, shrubs,
banks and berms, landscaping or fencing;
Signage
10.
To ensure that the Development Regulations include standards and conditions pertaining
to the design and location of advertisements and signage. Ensure that such signage will
enable people to quickly and easily locate services and contribute to the overall
attractiveness and distinctiveness of Appleton and its planning area;
Uses Permitted in All Designations
11.
Set out in the Development Regulations which land uses will be permitted in all zones,
including, conservation land use class, infrastructure, such as roads, public utilities, and
hydro corridors, and exploration that is not a 'development';
Future Development
11. Reserve land for future road access to back-lands;
12. Allocate land for future development on the basis of its best use considering its physical
characteristics and location;
13. Allow new subdivision development in areas that can be easily connected to municipal
services;
14. Explore options to have a property mapping system that will help identify available, serviced
and non-serviced residential lands;
15. Provide Subdivision provisions in the Development Regulations that will provide Council
with the tools to set out the subdivision development standards and ensure compliance.
Town of Appleton Municipal Plan 2017-2027
Tract Consulting Inc.
37
Water Supply System
16. Maintain its water supply system, including intake, treatment plant, and distribution system,
in good working order to ensure the availability of an adequate quantity and quality of
water for residents, businesses, and public facilities.
17. Maintain adequate fire flows in all areas served by municipal water;
Sanitary Sewer System and Storm water
18. Maintain the town's sanitary sewer and storm water system in good working order;
Water and Sewer
19. Ensure that all water and sewer infrastructure associated with new land development must
meet the minimum standards of the Town;
20. Ensure that the costs of installing water and sewer services and connecting new lots to the
municipal system will be the solely the responsibility of the developer;
Roads
21. Undertake improvements to the municipal roads through a regular maintenance program;
22. Provide adequate building setback from roads shall be required in order to maintain road
standards. Setbacks should be sufficient to allow for landscaping of front yards, vehicle off-
street parking and not interfere with the abilities of the Town's snow clearing program. In
certain circumstances where topography restricts the development of a lot, a larger setback
may be permitted to accommodate the development;
23. Ensure that the local transportation system adequately and safely provides access to meet
the needs of residents and businesses;
24. Develop a proper road system with connecting streets by ensuring that streets do not
exceed the maximum length by providing a second access for emergency access purposes;
25. Adequate off-street parking and loading facilities shall be provided.
Where municipal services not provided
26. Ensure that the developer is aware that they are responsible to ensure that on site services
meet the standards of the Service NL (Government of Newfoundland and Labrador).
Development Design Guidelines
27. Establish development design guidelines in the Development Regulations to achieve a
higher quality of built environment.
Land use Designations and zones within the Protected Road corridor
Town of Appleton Municipal Plan 2017-2027
Tract Consulting Inc.
38
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
28. Within the Protected Road Zoning corridor established under the Protected Road Zoning
Regulations, 1996, the Municipal Plan designations on the Future Land Use map and the
Development Regulations zones on the Land Use Zoning map apply; this is consistent with
the interpretive practice of the Government of Newfoundland and Labrador. Note that a
Permit is required from Service NL.
Town of Appleton Municipal Plan 2017-2027
Tract Consulting Inc.
39
3.0
LAND USE CLASSES: OBJECTIVES AND POLICIES
In accordance with Section 13 (2) (c) of the Urban and Rural Planning Act, 2000, the land in the
Municipal Planning Area of the Town of Appleton is divided into land use classes. Each class of
land use is described by the objectives for this class of use that reflect the vision of the
community. Where needed, the land use class is further refined into zones that reflect these
various desired outcomes.
The polices and guidelines provide direction for the development controls and design guidelines
for the uses in each zone contained in the Development Regulations. Council shall establish in
the Development Regulations the uses, standards and conditions for development in each land
use zone.
Council may add or revise the uses, standards and conditions for development in any land use
zone by amendment to the Development Regulations, provided the changes are consistent with
the objectives of this Plan.
The Town of Appleton has the following land use designations:
-
Residential Land Use Designation:
-
Commercial/Industrial Land Use Designation
-
Industrial Land Use Designation
-
Flood Risk Land Use Designation
- Open Space, Park and Trails Land Use Designation
-
Institutional/Public Land Use Designation
-
Resource Land Use Designation
-
Mineral Working Designation
The boundaries between land uses designations are meant to be general, except where they
coincide with roads or other prominent physical features, where they are intended to define the
exact limits. They are illustrated on the Future Land Use Map found in Appendix 1; note that t he
paper copy of this map with the signed registration stamp is the legal version. One copy of the
registered map is kept at the Council office, Town of Appleton and a second copy is in t he
Minister's Registry with t he Department of Municipal Affairs and Environment.
3.1
RESIDENTIAL LAND USE DESIGNATION
The Town of Appleton has a core residential area that has a very country or rural atmosphere as
the community slopes down the banks of the Gander River. This is largely due to the different lot
Town of Appleton Municipal Plan 2017-2027
Tract Consulting Inc.
40
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
sizes, diversity of housing types, and preservation of trees and abundance of landscaping. This
community character needs to be preserved.
The Town also recognizes that the available housing stock no longer supports the goal of having
a family-friendly town for all ages. The current prices are beyond the reach of moderate-income
families or seniors seeking to downsize, yet remain in Appleton. The Town is also well-positioned
to attract high-end residential development that could contribute to the economic well-being of
the community. Recognizing that this type of development does not fit into the existing townsite,
the land base of the Town is sufficient to explore other possibilities.
In the centre of Town there is an area formerly zoned 'Urban Reserve'. This is a prime area to
provide housing priced for moderate incomes in order to enable young families and seniors to
be located close to Town facilities and be surrounded by the traditional established community.
While this area is located within the Protected Water Supply area, developments that are fully
serviced by water and sewer have been allowed by the Watershed Management Committee for
Gander Lake.
Another potential residential development scheme area was identified to the south of the main
developed area of the Town. According to the Town Engineer, it is possible to provide water and
sewer services to this area; however, it would be necessary to install a lift station to achieve this,
which would add to the cost of development. This area is located above the water intake for the
Towns of Appleton and Glenwood. As a result, there is a 150-m no-development buffer ('intake
buffer') from the shoreline of Gander River extending for 1 (one) kilometre above the
pumphouse. This results in a considerable loss of developable land if this buffer becomes the
starting boundary for development. In addition, the area is bisected by the T'Railway Provincial
Park, which also reduces the land area available. However, it is possible to apply for a permit for
a street crossing of the park. If a development proposal contains full servicing for both water
and sewer to all lots, there is a possibility that the Watershed Management Committee may
consider a variance to the 'intake buffer' (as identified on the Future Land Use Map), which
would make more developable land available.
The policies and associated zoning needs to provide the flexibility and opportunity for the Town
to attract the cross-section of types of families without compromising its core country character.
3.1.1
GOALS
1. To provide for an adequate quality, quantity and mix of housing to serve the needs of the
present and future population;
2.
Ensure that land uses are properly allocated so that conflicts between non-compatible uses
are avoided;
Town of Appleton Municipal Plan 2017-2027
Tract Consulting Inc.
41
Example of the country living feel of the Town of Appleton which is what makes the Town
special-
and needs to be protected by the policies of this Plan;
3.1.2
OBJECTIVES
The objectives of the Residential land use class designation are:
1. Preserve the distinctive country-living character of the residential core of the Town of
Appleton;
2. Accommodate housing needs for all residents for a range of age, income, abilities, and
family status;
3. Allow for a range of housing, including affordable housing for residents of different income
levels, age groups, family structures, and disability needs;
4.
Preserve the amenity of existing residential area;
5. Allocate sufficient residential land to meet anticipated requirements for the next ten years.
6.
Protect residential quality of life and property value;
7. Accommodate a range of housing types to satisfy market needs;
8.
Build livable neighbourhoods through consideration of sustainable options for more diverse
housing densities and design, purchase-price choices and economically efficient residential
patterns;
9.
Encourage residential development to areas that can be connected to existing streets and
existing municipal services economically;
10. Consider carefully extensions of existing streets and new residential streets in close
proximity to existing residential development to protect access to future development
opportunities;
11. Promote new residential development provided that it can maintain the Town's natural and
scenic character;
Town of Appleton Municipal Plan 2017-2027
Tract Consulting Inc.
42
I
I
I
I
I
I
I
I
I
I
I
I
I
I
12. Manage residential development in a manner that preserves and protects sensitive
environments and public open space;
13. Ensure a pattern of development that reduces land use conflict between residential and
other land uses;
14. To provide good quality residential site design and a high standard of municipal services;
15. Encourage options for innovative housing forms and other efficient and uses of land that are
financially accessible to a range of household types and income groups including first-time
home owners, young families, and seniors, such as, for compact lots, cluster developments,
granny cottages, panhandle lots; particularly, in Comprehensive Development Scheme Area
#1 - Forest Hill;
3.1.3
POLICIES
It is the policy of Council to:
1. Provide for the following zones within the Residential future land use designation in order to
achieve the residential objectives:
Residential Traditional Community
Residential High Density
Residential Development Scheme Areas:
#1- Forest Hill (RDSA)
#2 - Gleneagles View (RDSA)
2.
Implement the following development policies in the 'Residential Traditional Community
zone':
a.
Permitted uses include: Residential Dwelling - single, Residential Dwelling - double,
Open space, Park, and Trails, Environmental Protection Areas, Subsidiary apartment,
Accessory uses, and Uses permitted in all zones;
b. Discretionary uses include: Home business, Townhouse, and Urban Agriculture
c.
Allow subsidiary apartments including 'granny flats' attached to the main permitted
single dwelling as an affordable housing option.
d. To encourage a more interesting streetscape including staggered building line
setbacks;
3.
Implement the following development policies in the 'Residential High Density zone':
a. To allow the following permitted uses: Residential Dwelling - single, Residential
Dwelling - double, Townhouse, Open space, Park, and Trails, Environmental Protection
Areas, Subsidiary apartment, Accessory use, Uses permitted in all zones; and
Discretionary uses, including Apartment building, Day Care - Residential.
Town of Appleton Municipal Plan 2017-2027
Tract Consulting Inc.
43
4. Implement the following development policies in the #1- Forest Hill ROSA:
a.
Permitted uses include: Non-conforming uses and Uses permitted in all zones; and
Discretionary uses include: Accessory uses, and Home business;
b. No new development can take place until a Residential Development Scheme has been
prepared according to Section 29 of the Urban and Rural Planning Act, 2000 which
requires that the ROSA adheres to the process set out in Sections 14-25 of the Urban
and Rural Planning Act, 2000.
c.
Council shall require the installation of municipal water and sewer at the developer's
expense.
d. A tree retention/replacement and landscaping plan should be included as a component
of the Comprehensive Development Scheme.
e.
Protect four access points into this area in order to ensure that an adequate road
system can be developed for the ROSA area.
f.
Provide a buffer for the T'Railway which needs to be integrated into the design for the
overall area; note that any crossing will require the permission of the Parks Division,
Government of Newfoundland and Labrador.
Example of how to provide a mix of housing units in a visually attractive manner
with staggered setbacks and different sizes; and with enough off-street parking.
Town of Appleton Municipal Plan 2017-2027
Tract Consulting Inc.
44
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
5.
Example of townhouses with landscaping and tree buffers for the CDSA site-Forest Hill,
that would protect the highly valued country atmosphere of the Residential Traditional Community zone.
Implement the following development policies in the #2 - Gleneagles View RDSA:
a.
Permitted uses include: Non-conforming uses, and Uses permitted in all zones; and
Discretionary uses include: Accessory uses, and Home business;
b.
No new development can take place until comprehensive planning has been carried out
as specified in the Municipal Plan. The lands zoned as Comprehensive Development
Scheme Area may be suitable for residential development; however, as there is no
approved schematic design showing the road network and proposed development, it is
premature to include refined zoning for these areas.
c.
A Residential Development Scheme must be prepared according to Section 29 of the
Urban and Rural Planning Act, 2000 which requires that the RDSA adheres to the process
set out in Sections 14-25 of the Urban and Rural Planning Act, 2000.
d. The installation of municipal water and sewer should be at the developer's expense.
e. A tree retention/replacement and landscaping plan should be included as a component
of the Development Scheme.
f.
All proposals for a Development Scheme must be submitted to the Watershed
Management Committee for Gander Lake according to the Water Resources Division of
the Government of Newfoundland and Labrador.
g. Protect two access points to this area:
i.
One access point is the continuation of Chippy's Lane, named after Zipporah Steele,
an influential individual in the founding and development of the Town, whose
nickname was 'Chippy', and,
ii.
a second access off Bowater Street almost across from the Town Hall (shown on
Future Land Use mapping);
Town of Appleton Municipal Plan 2017-2027
Tract Consulting Inc.
45
h. The 'Conservation approach' to subdivision design should be considered for the
Gleneagles ROSA. The 'Conservation approach' will also be helpful in dealing with the
terrain and slope considerations of the site (see illustrations below).
ConservatlOl'I / Ousler ReSldentJal Oevelopmenl
Example of how to protect natural areas for the benefit of all residents, yet provide the 'estate lot'
atmosphere in locations where topography and other environmental restrictions are a challenge.
6. Institute a tree retention/planting program to ensure that the forest character of the
community is preserved;
7. Protect access to future development opportunities, particularly when reviewing proposals
for extensions to existing streets, or new residential streets in close proximity to existing
residential development as a requirement of the development application review process;
8. Allow wind, solar, or small hydro generator within a built-up residential area which will be
limited to a single unit that serves an individual property; and,
9.
Ensure that, when taking over the maintenance of municipal infrastructure from new
developments, that these services can be delivered and maintained at a reasonable cost to
taxpayers.
10. Explore alternative development standards that complement the traditional community
character of Appleton through the following neighbourhood design guidelines for new
residential development:
a.
Developing diverse streetscape design;
b. Reducing front yard setbacks for new homes;
c.
Encouraging designs for front house porches;
d. Pursuing street tree planting schemes;
e. Provision for 1.5 meter {4.9 feet) wide bicycle lanes on new local streets;
Town of Appleton Municipal Plan 2017-2027
Tract Consulting Inc.
46
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
f.
g.
h.
i.
j.
k.
I.
3.2
Providing safe and convenient pedestrian access;
Requiring special entry signage, gateways, landscape areas and other unique urban
design features for larger subdivision projects, and for apartments;
Highlighting local heritage features through building details, signage, preservation;
Maintaining single family residential quality of life by restricting typical
discretionary uses;
Creating community gathering places (i.e. small parks, village squares);
Supporting public use of community centers and local schools; and,
Facilitating a range of services, including neighbourhood commercial, in close
proximity to residential neighbourhoods.
COMMERCIAUINDUSTRIAL LAND USE DESIGNATION
The Commercial/Industrial land use designation is intended to stimulate economic development
in order for the Town of Appleton to be able to continue to provide and expand the level of
services and programs to the residents. It is essential to expand the tax base and facilitating
business growth and development as well as attracting new businesses will achieve that
objective.
Appleton can take advantage of the traffic exposure afforded by the location of the Trans-
Canada Highway. People travelling to Gander for work pass this location twice a day and the
regional service catchment area for Gander reaches beyond employment commuter distances,
generating further regular and repeat traffic exposure. Therefore, the largest new area
designated as Commercial/Industrial is located in the large area to the north of the TCH. The
additional advantage of this location is that it is well removed from the existing and future
residential neighbourhoods; thereby reducing potential conflicts between uses that might be
incompatible with residential use. This expands the range of potential businesses that might
consider locating here.
There is only one Commercial/Industrial site on the south side of the Trans-Canada Highway
which was designated to accommodate the existing businesses that back onto residential area.
Both sites have historical roots in the community, and also provide an opportunity for future
development that could enhance the entrance into the community. The Towns of Appleton and
Glenwood are the gateway to the mighty Gander River and some of the best salmon-fishing in
North America and this location could promote the concept and add a 'stop over service'
dimension to serve the travelling public.
Town of Appleton Municipal Plan 2017-2027
Tract Consulting Inc.
47
3.2.1
GOALS
1. To provide for an adequate quality, quantity and mix of commercial land to serve the
present and future needs of the community;
2. Ensure that land uses are properly allocated so that conflicts between non-compatible uses
are avoided;
3. To encourage diversified and balanced economic growth, promote development and
diversify the local employment base;
4. To protect these businesses and to ensure their continued operation or allow for future
opportunities on these sites;
3.2.2
OBJECTIVES
The objectives of the Commercial land use designation are intended to:
1. Stimulate economic development in order for the Town of Appleton to be able to continue
to provide and expand the level of services and programs to the residents by facilitating
growth of existing businesses and attracting new businesses;
2.
Encourage commercial development located along the TransCanada Highway which
provides exposure to potential customers;
3. Provide sufficient land at appropriate locations to meet the need for new commercial
development;
4. Encourage intensification and redevelopment in existing commercial areas, to make better
use of existing Town infrastructure and to strengthen the vitality of these areas
3.2.3
POLICIES
It is the policy of Council to:
1. Provide for a commercial/industrial zone in the commercial land use designation on the
future land use mapping;
2.
Provide a 'Commercial/industrial' zone for businesses that provide retail, entertainment,
office and limited manufacturing (light/cottage industry scale} services catering to local,
regional and tourism markets;
3.
Permitted uses include: All Uses in the Commercial Land Use Class, Industrial - Light,
Public/Institutional Land Use Class EXCEPT Cemetery, Mineral Exploration, Open space,
Park, and Trails, Uses permitted in all zones; and Discretionary uses include: Accessory and
Subsidiary Uses;
4. Minimize the impact of commercial development on adjacent land uses and on the traffic-
carrying capacity of adjacent roads;
Town of Appleton Municipal Plan 2017-2027
Tract Consulting Inc.
48
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
5. To cre~te attractive commercial/industrial areas, discourage large, front yard surface
parking areas; encourage street-oriented development; and within large commercial
developments; require joint access and the co-ordination of internal and external traffic
movements.
6. Promote the development of these areas into a nodal configuration rather than strip
configuration so that their impact on traffic and adjacent land uses is minimized; and,
7. In commercial nodal areas, attention should be provided to the following general design
principles;
a.
Encourage the massing and architecture within the node to provide for articulated
facades and rooflines, accented main entry points, generous use of glazing and other
fac;ade treatments along sidewalk areas and weather protection features. These
elements should be encouraged to facilitate enhanced design and improve pedestrian
access within the node;
b. Require that street setbacks be minimized by placing smaller, single or multi-tenant
buildings near the sidewalk and along arterial roads and by increasing, as much as
possible, the street frontage of nodal developments. This will assist in framing
prominent nodal corners;
c. Improve the design the design of the street edge by including enhanced landscaping,
encouraging buildings at or close to the street line and discouraging the inclusion of
blank walls along major roads;
d.
Encourage development within the commercial nodes is encouraged to meet the
requirements for L.E.E.D. certification. Building design that can reinterpret and
integrate corporate design standards into the node's existing urban conditions should
be considered;
e.
Require that parking should be provided in rear or side yards and/or structured parking
areas. Street edge parking should be provided where conditions are suitable.
f.
Encourage the provision of signage supportive of the commercial node's character and
consistent throughout the node should be encouraged;
g.
Promote the use of landscaping to screen and buffer unsightly uses should be an
integral part of the commercial node;
h. Encourage combined access points and joint access between neighbouring properties to
minimize traffic impacts on adjacent road and maximize the traffic carrying capacity of
those roads; and,
i.
Address urban design issues such as noise, landscaping, privacy fencing at the interface
of the Commercial/Industrial zone and adjacent sensitive land uses.
Town of Appleton Municipal Plan 2017-2027
Tract Consulting Inc.
49
3.3
INDUSTRIAL LAND USE DESIGNATION
The Town of Appleton initiated the development of the Industrial Park which is continuing to
expand. The key difference between the uses to be encouraged for the new Commercial/Light
Industrial zone is that the existing Industrial Park will allow more General Industrial uses and not
Commercial uses. As the Industrial Park is generally located away from the Trans-Canada
Highway and any existing or future residential development, this area provides an opportunity
for a wide range of industrial activity.
As well, it is proposed that the Town of Appleton apply for an expansion of the Town Planning
Area boundary in order to accommodate expansion of the existing Industrial Park. To the east,
there is an existing access to the Trans-Canada Highway which could provide an opportunity for
a loop road linking up with an extension to the existing roads. As well, by adding this land under
the control and administration of the Town, the Town will no longer need to acquire Crown
lands in order to control development in this area. Instead, the Town can control development
by the application of the policies and development controls in the Municipal Plan and
Development Regulations, which is a better use of Town financial resources.
3.3.1
OBJECTIVES
1. To expand the Industrial Park to offer more business opportunities for the Town;
2.
Designate sufficient industrial land to accommodate the growth anticipated during the
planning period, including an adequate supply of available serviced land and an allowance
for sufficient choice in terms of location, size of properties, and servicing requirements.
3.3.2
POLICIES
It is the policy of Council to:
1. Provide for an industrial park zone in the industrial future land use designation on the future
land use mapping;
2. Provide for an industrial park zone with the following permitted uses: Industrial - General,
Industrial - Light; and Discretionary uses: Contractor, Limited and Custom Manufacturing
Service;
3.
Minimize any potentially adverse impacts from industrial development on surrounding land
uses by encouraging industrial uses to locate in industrial parks.
4. Encourage an efficient utilization of land within industrial areas.
5.
Develop a Town of Appleton Economic Development Strategy.
Town of Appleton Municipal Plan 2017-2027
Tract Consulting Inc.
50
I
I
1
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
6.
Promote a broad industrial base through the provision of a choice of locations, lot sizes,
services, and road and rail access corridors, in order to accommodate a wide range of
industrial uses.
7.
Provide appropriate locations for industrial uses which have characteristics that may not be
compatible with other land uses.
3.4
FLOOD RISK LAND USE CLASS
3.4.1
GOAL
The goal is to comply with the Provincial Government policy on Floodplain Management.
3.4.1
OBJECTIVES
The objectives of this zone are:
1. To reduce the potential for property damage and loss of life due to flooding, by restricting
the development of flood plain lands to an appropriate range of uses;
2. To implement the valuable flood mapping and associated policy on floodplain management
as provided by the Water Resources Management Division in a manner to reduce risk and
liabilities to the residents of Appleton.
3.4.2
POLICIES
It is the policy of Council to:
1. Ensure that the Development Regulations set out the permitted uses in the 1:20 year and
1:100-year Flood Risk Zones as approved by the Water Resources Management Division,
Government of Newfoundland and Labrador;
3.5
OPEN SPACE, PARK AND TRAILS LAND USE DESIGNATION
The Open Space Park and Trails land use designation may be comprised of public and private
open space; flood plain lands; natural heritage areas recognized by Council as having natural
significance; lands that contribute to important ecological functions and lands containing other
natural physical features which are desirable for open space use or preservation in a natural
state.
Generally, due to their location in the flood zones, uses permitted within the Open Space, Park
and Trails designation are limited to non-intensive uses, such as neighbourhood parks,
playgrounds, and trails. However, depending upon the scope of development and for those sites
located outside the flood zone, Council may consider the discretionary uses.
Town of Appleton Municipal Plan 2017-2027
Tract Consulting Inc.
Sl
The Residential Traditional Community area and the Residential Development Scheme Areas are
bisected by the T'Railway Provincial Park which provides a multi-use resource for outdoor
recreation opportunities of all kinds, walking, jogging, biking, cross country skiing, as well as
enabling winter snowmobile access to the backcountry of the Northwest Gander wilderness.
While not designated as Open Space, Parks & Trails, it provides an important backbone to a
community outdoor recreation connectivity.
There are two Town parks. First, the Memorial Park situated on the Gander River has a beautiful
location; however, as it is located in the designated Flood Zone, it has limited potential for
development. Nonetheless, there is considerable opportunity to develop an interpretive trail
system along the Gander River, particularly towards the former Gleneagles lodge site. This
concept should be incorporated into the design of the Comprehensive Development Scheme #2
-Gleneagles View.
The Gander River trail could also be extended northwards to cross the T'Railway at the bridge
and link up to the Open Space, Parks & Trails designation there. This new Open Space, Parks &
Trails designation at the bridge is located at a potential site for a Campground with a view of the
Gander River and a launching place for Gander River boats the site is located within 200 m of a
Scheduled River (Department of Fisheries and Oceans) and would require registration under the
Environmental Assessment Regulations, 2003 of the provincial Environmental Protection Act,
2002. Nonetheless, it offers an economic opportunity that ties in with a key locational feature
of the Town, while also enhancing the community recreational opportunities.
The second Town Park is located close to the Trans-Canada Highway (TCH), just behind an area
that contained a Contractor-General use. The park is surrounded by residential single dwellings.
The proximity to the TCH offers an opportunity to create a welcoming entrance to the Town;
however, this would require cooperation with the landowners in the Contractor-General
operation facing the TCH.
The inclusion of privately-owned lands within the Open Space, Park and Trails designation shall
not imply that the land is accessible to the public. Permissions for public access to privately
owned property within the Open Space, Parks and Trails designation shall be at the discretion of
the property owner.
Town of Appleton Municipal Plan 2017-2027
Tract Consulting Inc.
52
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
3.5.1
GOAL
1. To provide for open space areas in all parts of the Town to allow for a balanced distribution
of locations for both active and passive recreational pursuits;
3.5.2
OBJECTIVES
The objectives for this designation are:
l. To provide zoning with the appropriate level of protection and limitations on use in order to
protect the integral value of these natural resources.
2. Encourage provision of continuity and accessibility linkages among open space areas
throughout the Town by utilizing the T'Railway, and shoreline and incorporating these
values into new development;
3.
Enhance the accessibility of publicly-owned open space areas, where there is no danger to
public safety and where significant natural features and ecological functions can be
protected;
3.5.3
POLICIES
It is the policy of Council to:
l. To provide for an Open Space, Park and Trails zone in the on the Open Space, Park and Trails
Future Land Use designation.
2.
Permitted uses include: Open Space, Park and Trails; and Discretionary uses include:
Campgrounds, Restaurant - Mobile Take Out, Street Vendor only;
3. Encourage public access to identified environmentally significant areas and the shoreline of
the Gander River will in appropriate locations within the context of existing and future land
uses, where there is no danger to public safety, and where significant natural features and
ecological functions can be protected.
4.
Ensure that development and operation of recreational facilities shall not impose adverse
effects on adjacent residential and other uses in terms of noise, traffic and hours of
operation.
5. Ensure that the development of passive recreation facilities such as walking or nature trails,
and associated interpretation programs do not have an adverse impact on the natural
environment and adjacent residential properties by providing buffers.
6. Ensure that there is no encroachment on the T'Railway Provincial Park (50 feet on either
side of centerline for a distance of 3.4 km).
Town of Appleton Municipal Plan 2017-2027
Tract Consulting Inc.
S3
3.6
PUBLIC/ INSTITUTIONAL LAND USE DESIGNATION
This class includes land uses and developments whose services provided to the general public
and have a community-wide or regional catchment area. For the Town of Appleton, there is
only one location identified in this use class, the Town Hall and associated facilities. Essentially
the existing development has been captured in this designation.
In consideration of future development in the Town, this designation has been further expanded
in the Development Regulations to include uses that may potentially be considered by Council in
the Commercial/Industrial zone located at the Trans-Canada Highway. The employment
generated by Institutional/Public uses make them an attractive use for this location
3.6.1
GOAL
1. To provide for an adequate quality, quantity and mix of public/institutional land to serve the
present and future needs of the community;
2.
Ensure that land uses are properly allocated so that conflicts between non-compatible uses
are avoided;
3.6.2
OBJECTIVES
1. To identify opportunities for new public/institutional development in the Town of Appleton
which could provide employment prospects;
3.6.3
POLICIES
It is the policy of Council to:
1. Provide for a public/institutional zone in the public/institutional future land use designation
on the future land use mapping.
2. Permitted Uses: Institutional/Public - Town Hall and associated facilities only; and,
Discretionary Uses: Accessory uses, Club and lodge;
3.
Require that Institutional/public uses be located on arterial and collector roads that can
accommodate the traffic generated by such uses;
4. Ensure that Institutional/Public uses are compatible with surrounding development in terms
of size, scale and layout of buildings;
5.
Require provision of full municipal services to accommodate the proposed use;
6. Consider establishing separation distances between Institutional/public uses to reduce
potential conflicts and impact on surrounding community;
7. Require that all proposals provide a traffic plan including access/egress and onsite parking
and loading details;
Town of Appleton Municipal Plan 2017-2027
Tract Consulting Inc.
54
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
3.7
RESOURCE LAND USE DESIGNATION
Lands designated as Resource lands are intended to be used primarily by natural resource
industries such as agriculture, forestry and mineral working operations. The site suitability
requirements for each of these industries is limited; therefore, it is important to reserve areas
identified by both the public and private sector for these uses.
As well, there are other land uses which, by the nature of the activity, are not suitable to be
located adjacent to other more urban uses; therefore, they require the separation space that
can be found in the Resource zone. These are listed as Discretionary uses.
Provincial Government agencies, such as the Land Resources Stewardship Division and the
Mineral Lands Division each have jurisdiction under legislation to plan and control these
resources. It is the objectives of this plan to ensure that the Town is adequately consulted by
these agencies, and that permits are secured from the Town, as required.
At this time, there are several farms and/or agriculture leases identified by Agri-foods. These
have been incorporated into the Land Use mapping as an overlay. When any Crown land is
considered for an Agriculture lease, the Town must receive a referral from the Crown Lands
Division requesting their input. With regard to private operations, the Development Regulations
indicate the current standards applied under provincial guidelines regarding separation of
incompatible uses. There is only one farm, Scott's Farm, that is located close to residential,
industrial and the proposed commercial/light industrial zone. It is currently a crop (fruit and
vegetable) operation; however, if it became a livestock operation, this is a change of use that
would require a permit from Council. Potential conflicts with surrounding land uses would have
to be addressed in the application.
The timber within the Planning Area Boundary for the Town of Appleton is under a Timber
License between the Provincial Government and Kruger. As a requirement under this license,
Kruger prepares 5-year Forestry Management Plans, and annual operating plans. The Town
should be consulted in the development of these plans. Currently there are no commercial
operations active in the Town, however, some domestic harvesting takes place. Unlike
Government domestic harvest permits, Kruger does not specify the location for domestic
harvesting when it issues the domestic harvesting permit. To date, this has not created any
issues between harvesters and land users or to the Town.
There are no quarries currently located within the Planning Area boundary; however, there is a
site outside the eastern boundary of the Town which would indicate that there is the potential
for such resources in the area. Therefore, the Development Regulations contain an extensive
Town of Appleton Municipal Plan 2017-2027
Tract Consulting Inc.
55
section addressing the issues related to such development in order to assist Council in reviewing
any future applications that must be referred to them by the Mineral Lands Division.
3.7.1
GOAL
1. To set aside rural lands intended to be used primarily for resource and rural uses and
associated development that needs a rural context or large areas of land, or are
incompatible with the urban area;
2.
Ensure that land uses are properly allocated so that conflicts between non-compatible uses
are avoided;
3.7.2
OBJECTIVES
The objectives for the Resource Use designation is to:
1. Ensure coordinated and organized development of resource lands that may have significant
economic and recreational value to the Town;
2. Retain the present rural character of the resource zone by limiting development permitted
within this designation to those associated with agriculture, forestry, quarrying, outdoor
recreation, cemetery or other uses such as cottage areas as may be outlined in this Plan;
3.7.3
POLICIES
It is the policy of Council to:
1. Provide for a resource zone in the resource future land use designation on the future land
use mapping;
2. Establish a Resource zone that will allow for agricultural, forestry, and mineral development.
Council will consult with the natural resource agencies regarding agricultural applications,
forestry management plans and quarry applications;
3. There are other uses which, by the nature of the activity, are not suitable to be located
adjacent to other more urban uses or in industrial or commercial zones; therefore, they
require the separation space that can be found in the Resource zone. These will be
considered as Discretionary uses and range from resource-related industrial uses to resorts
or amusement parks and campgrounds. Discretionary uses must be compatible with the
primary natural resource values of the Resource zone;
4. Permitted uses: Commercial Agriculture, Forestry, All uses in Parks and Environmental
Protection Land Use Class, Mineral Exploration, Mineral Working, Uses allowed in all zones;
and Discretionary uses: Accessory Uses, Veterinary Clinic, Outdoor Market, Natural
Resource Use, Natural Resource Related Uses, Industrial - General, Industrial
Town of Appleton Municipal Plan 2017-2027
Tract Consulting Inc.
56
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
Heavy/Hazardous, Cemetery, Campground, Contractor General, Contractor-Limited, Public
Gathering - Outdoor, Amusement Park/Attraction, Salvage/scrap yard, Service Station,
Kennel, Protective and Emergency Services, Resort, and (2) Cottage;
5. Cottage developments or cottage subdivisions are permitted in the Resource zone, as well,
individual remote cottages are allowed. Sites shall be carefully considered with regard to
potential future demand for municipal services or conversion to permanent homes.
6.
Protect the natural resources of the Town for the best use in an environmentally responsible
manner;
7. Ensure that the Development Regulations address the key issues related to the natural
resource developments and associated industrial uses and incorporate the environmental
protection values of the Municipal Plan, particularly regarding site rehabilitation.
8. Ensure that the discretionary uses are compatible with the primary natural resource values
of the Resource zone. Forestry activities such as harvesting, road building and silviculture are
permitted activities. Development in the Resource zone will respect the priorities set out in
the Crown 5-Year Operating Plan Zone 3 (2017-2021) for the area. Any proposed
development within the Resource zone are to be referred to Corner Brook Pulp and Paper as
these forest resources are allocated for their use ( [email protected] - 637-3155).
3.8
MINERAL WORKING LAND USE DESIGNATION
The lands set aside for mineral working purposes are lands with high potential for aggregate
material where access to the resource must be protected.
3.8.1
GOAL
1. To set aside mineral lands intended to be used primarily for quarrying, mineral working uses
and associated development that need protection and are incompatible with the urban
area; and to ensure conflicts between non-compatible uses are avoided.
3.8.2
OBJECTIVES
The objectives for the Mineral Working Use designation is to:
1. Ensure coordinated and organized development of mineral working lands to maximize use
of the resource;
2.
Protect the rural character of the Town by ensuring that site layout, screening, rehabilitation
measures are set out in the permitting process; and,
3.
Ensure safe multi-purpose use of the resource road access for industrial, commercial and
recreational users.
Town of Appleton Municipal Plan 2017-2027
Tract Consulting Inc.
57
3.8.3
POLICIES
It is the policy of Council to:
1. Protect the valuable aggregate resources in the Planning Area under the Mineral Working
designation;
2.
Provide for a mineral working zone will allow for mineral working (quarrying) and mineral
development in the mineral working future land use designation on the future land use
mapping;
3.
Permitted uses: Mineral Exploration, Mineral Working, Uses allowed in all zones and
conservation; and Discretionary uses: Accessory Uses, and other uses typical of the
Resource zone such as, agriculture, forestry, scrapyard, or resource industrial uses;
however, the application for these uses must be referred to the Mineral Lands Division of
the Provincial Government to ensure that there would be no conflict with quarry activity.
4. To prohibit single dwellings accessory to agriculture and forestry operations in the Mineral
Working designation;
5. To allow for multiple use of the access road that traverses the Mineral Working zone by
other resource and recreational users.
6. Ensure that the Development Regulations address the key issues related to the natural
resource developments and associated industrial uses and incorporate the environmental
protection values of the Municipal Plan, particularly regarding site rehabilitation.
3.9
MIXED DEVELOPMENT LAND USE DESIGNATION
Mixed use development refers to development projects that comprise a mixture of land uses, or
more than just a single use, that is, different uses which fall into more than one Use Class. Mixed
use developments can be 'vertical', in which a single building accommodates multiple uses, such
as a an apartment building that has an apartment flat on the second floor and a shop on the
ground floor. Alternatively, they can be 'horizontal' mixed use development where a range of
different buildings, such as a community area that has accommodation as well as playing
facilities, shops, retail, etc.
3.9.1
GOAL
1. To provide for a mix of residential and commercial development including
residential/commercial mixed-use developments with limited commercial, office and service
uses distributed on-site in a manner sensitive to the street environment and adjacent
residential areas.
Town of Appleton Municipal Plan 2017-2027
Tract Consulting Inc.
58
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
3.9.2
OBJECTIVES
1. Create a Mixed Development zone which is inclusive, accessible, friendlier, more attractive,
with a more walkable landscape
2. Create opportunities for small-scale, attractive commercial buildings that have doors and
windows facing streets and parking areas which encourage interconnected, walkable streets
to create a sense of community;
3.9.3
POLICIES
It is the policy of Council to:
1. Provide for a mixed development designation on the mixed-use Future Land Use map and
establish Mixed Use zone on the Land Use Zoning map of the Development Regulations;
2. Permitted uses include: Residential-Detached and Semi-detached Dwellings; Amusement
establishment/use, Business support service, Club and Lodge, Convenience store, General
Service/repair, Medical or Dental Clinic, Personal Service, Offices, Restaurant-full service,
Retail, Public Gathering Place - indoor;
3. Discretionary uses include: Bar; Residential Dwelling - semi-detached; Townhouse;
Apartment (apartment building can be a stand-alone building or combined with commercial,
with commercial on the ground floor); Home Business;
4.
Ensure that the non-residential uses allowed in this zone are compatible with the residential
uses with due attention to hours of operations, noise levels, traffic levels, and other
nuisance factors.
Town of Appleton Municipal Plan 2017-2027
Tract Consulting Inc.
59
4.0
IMPLEMENTATION
4.1
ACTION PLAN
In order for the Town of Appleton to achieve the Vision articulated in their Municipal Plan, the
Council will need to:
-
Adopt Development Regulations as a tool for administration and implementation;
-
Implement a Capital Works program to support Plan implementation;
-
Ensure a clear and efficient approach to the development review, and approval
processes;
-
Undertake to conduct research to inform decision-making in Plan implementation; and,
-
Develop a Community Action Plan to set goals to achieve the objectives of the Plan.
Development Regulations are one of the main vehicles through which Plans are implemented.
The Town will review, revise and adopt Development Regulations pursuant to Section 35 of the
Urban and Rural Planning Act, 2000.
4.2
AMENDMENTS TO THE PLAN
Council may consider amendments to the Municipal Plan when:
1. There have been significant changes to the community since the preparation of the
background report that provided the factual basis for the policies in this Municipal Plan; for
example, a gold mine is started just outside the southern boundary of the Town and there is
a demand for services and influx of workers;
2. Studies have been undertaken by the Town or the provincial or federal governments which
contain recommendations or policies which should be incorporated into the Municipal Plan;
3. A development proposal is submitted to Council which provides sufficient information and
rationale to support a change in the Municipal Plan
4. In considering any proposed amendment to the Plan, the Council should evaluate the
proposal for consistency with the strategy for growth of the Town, as established in the
goals, objectives and policies of the Municipal Plan.
4.3
REVIEW OF THE PLAN
The Council for the Town of Appleton will undertake a review of the Municipal Plan every five
years in accordance with the requirements of Section 28 of the Urban and Rural Planning Act,
2000. This review may be comprehensive or it may consist of an audit of progress that confirms
that the Plan is still relevant. The review process is valuable to the Council and residents to
ensure that the administration of the community achieves the objectives of its residents.
Town of Appleton Municipal Plan 2017-2027
Tract Consulting Inc.
60
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
APPENDIX 1: FUTURE LAND USE MAP
Town of Appleton Municipal Plan 2017-2027
Tract Consulting Inc.
61
I
I
I
I
I
I
I
I
I
I
I