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Town of Brigus
Municipal Plan
Prepared for:
Prepared by:
The Town of Brigus
CBCL Limited
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Date:
June 2012
Project#:
103037.00
2011-2021
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Urban and Rur I Plannin
Resolution to Adopt
Town of Brigus Municipal Plan
2011 - 2021
Under the authority of Section 16 of the Urban and Rural Planning Act 2000, the Town
Council of Brigus adopts the Brigus Municipal Plan 2011-2021.
Adopted by the Town Council of Brigus on the 4
day of £(,pteh'I i?e¥ , 2012.
Signed and sealed this
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day of ~
m bu-- , 2012.
Mayor:
tZ~
Clerk:
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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.
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Urban and Rural Planning Act
Resolution to Approve
Town of Brigus
Municipal Plan
2011 - 2021
Under the authority of section 16, section 17 and section 18 of the Urban and Rural
Planning Act 2000, the Town Council of Brigus
a)
adopted the Brigus Municipal Plan 2011-2021 on
the 4 day of September, 2012.
b)
c)
gave notice of the adoption of the Brigus Municipal Plan by advertisement inserted
on the 17 day and the 24 day of September, 2012 in the Compass.
set 4 day of October, 2012 at the Brigus Recreation Centre, Brigus, for the holding
of a public hearing to consider objections and submissions.
Now under the authority of Section 23 of the Urban and Rural Planning Act 2000, the Town
Council of Brigus approves the Brigus Municipal Plan 2011- 2021 with the following
changes:
Section 7.3 and 7.4 of the Municipal Plan are revised to clarify the requirements
for public consultation and for amending the Municipal Plan by replacing the
word "and" with "or" at the end of the second last bullet of each section.
Correcting the Future Land Use Map to reflect the removal of the Cupids Pond
Protected Watershed Boundary that is no longer a protected watersupply area.
Lands designated Residential Mixed and Rural.
Reducing the area of lands designated Conservation around Frog Marsh fond
and designating them Historic Townscape;
Reducing the area of lands designated Conservation along the Conception Bay
Highway, Keatings Road, and Guys Lane and designating them Residential
Mixed.
Changing the designation of lands north of Rattley Row to Residential Mixed to reflect the
original designation from the 1994 Municipal Plan and Development Regulations.
, Ml il.icipnl Plan/ Amendment
Mayor:
REGISTERED
Clerk:
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Table of Contents
+-o-1---------1-1-----t1,.,n-trodactton .............................................................................................................................................. 1
1.1
Purpose & Planning Period ................................................................................................................... 1
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1.2
PlanningArea ............................................................................................................................................. 1
1.3
Plan Preparation & Public Consultation Process ......................................................................... 2
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1.4
Approval Process ...................................................................................................................................... 3
1.5
Effect. .............................................................................................................................................................. 3
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1.6
Implementing the Plan ........................................................................................................................... 3
1.7
Reviewing and Amending the Plan .................................................................................................... 3
1.8
Interpretation ............................................................................................................................................. 4
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2
Planning Context ..................................................................................................................................... 5
2.1
Development Pattern .............................................................................................................................. 5
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2.2
Climate Change Vulnerability .............................................................................................................. 6
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2.3
Population and Housing Need ............................................................................................................. 6
2.4
Historic Preservation .............................................................................................................................. 7
2.5
Economic Development ......................................................................................................................... 8
2.6
Municipal Services .................................................................................................................................... 8
3
Vision and Planning Goals .................................................................................................................... 9
3.1
Community Vision .................................................................................................................................... 9
3.2
Community-Wide Goals ....................................................................................................................... 10
4
Community-Wide Policies .................................................................................................................. 11
5
Managing Land Use ............................................................................................................................... 19
5.1
Historic Townscape .............................................................................................................................. 19
5.2
Residential Mixed Land Use ............................................................................................................... 22
5.3
Rural Land Use ........................................................................................................................................ 23
5.4
Environmental Protection .................................................................................................................. 25
5.5
Water Supply Protection ..................................................................................................................... 26
6
Municipal Services and Infrastructure .......................................................................................... 27
7
Implementation ..................................................................................................................................... 29
7.1
Administration of the Municipal Plan ............................................................................................ 29
7 .2
Development Regulations .................................................................................................................. 29
iii
7.3
Public Consultation ............................................................................................................................... 30
7.4
Amending and Reviewing the Municipal Plan ........................................................................... 31
7.5
Muutcipal LandAssentbly ................................................................................................................... 31
7.6
Professional Advice ............................................................................................................................... 32
7.7
Municipal Budget and Capital Works Program ......................................................................... 32
8
Appendices .............................................................................................................................................. 33
Appendix A- Future Land Use Map ............................................................................................................... 33
Appendix B - Municipal Plan Background Report.. .................................................................................. 34
Appendix C - References & Information Sources ...................................................................................... 39
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1 In reduction
1.1
Purpose & Planning Period
The Brigus Municipal Plan is Council's comprehensive po icy document for the sustainable
management of growth and development within the municipal planning area over the ten year
planning period 2012 to 2022. The Plan repeals and replaces the Town of Brigus Municipal Plan
1993-2003.
The Plan sets out policies for the management of growth and development in the community.
Through the Plan, Council aims to protect the historic character and built form of Brigus'
townscape, promote the health and safety of residents, support the ocal economy and protect
the environment through the efficient utilization ofland, water and other resources.
The Municipal Plan sets the vision, goals and objectives for community development and
includes written policies and the Future Land Use Map. Development Regulations implement
Town policies through specific requirements that ensure land is controlled and managed in
accordance with the Plan.
1.2
Planning Area
The map on the right shows the
Municipal Planning Area for the
Town of Brigus. The Planning
Area is governed by Town
Council, which exercises control
over all development, watersheds
and amenities of the municipality.
The Planning Area for Brigus
extends beyond the
political/taxed Municipal
Boundary to include and protect
the Town's drinking water supply
and adjacent rural areas.
Brigus Municipal Plan
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Source: Dept. of Municipal Affairs, 2011
Base map: Google, 2011
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Brtgua Munlclpal Planning Area
Brtgua Munlclpal Boundary
Introduction 1
1.3
Plan Preparation & Public Consultation Process
The current Bri us Munici al Plan and Develo ment Re
lations were re ared b the Urban
and Rural Planning Division, Department of Municipal and Provincial Affairs, and approved in
1994. This Municipal Plan reflects a review of the 1994 Plan, subsequent amendments and
other relevant planning documents.
The figure on the right outlines the process to establish the Brigus Municipal Plan in accordance
with the Urban and Rural Planning Act, 2000. Relevant planning issues have been reviewed
including a review of current land use, demographic and economic data. The Municipal Plan
takes into consideration, and
incorporates where appropriate, the
recommendations set out in the
integrated Community Sustainability
Plan (2010) as well as older studies such
as the Brigus Development Study
(1990), Townscape Conservation and
Community Development Program
(1986) and the Townscape Study
(1971).
The consultation process also included
contact with various government
agencies and other relevant
organizations. The residents of Brigus
were also consulted and given the
opportunity to provide feedback
throughout the Plan review process. On
March 8, 2011, a public meeting was
held at the Brigus Recreation Centre.
Printed invitations were distributed to
residents that included information
about the Municipal Plan review
process, and the event was advertised in
the Telegram newspaper. Following the
meeting, residents had the opportunity
to provide further input by email and
phone.
Brigus Municipal Plan
The Planning Process
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Research & Analysis
Assessment of current plannin9 context~. uses
and interests, review of past townscape and
development studies, and assembly of GlS
mappin9 data.
Consultation
Consultation with residents, Council,
provincial a9encies, local or9anizations, and
other stakeholders.
Draft Plan & Map
Town vision, 9oals and objectives, plan
policies and mappin9 prepared for the
updated Bri9us Municipal Plan.
Development Regulations prepared to
implement plan policies.
Plan Review
Department of Municipal Affairs reviews Plan
for conformity with Provincial policy and law.
Council considers draft Plan, adopts Plan, and
appoints a Commisianer to hold a public
hearin9.
Municipal Plan Approved
Council considers Commisioner's report,
approves Plan, submits Plan to Municipal
Affairs for re9istration. and publishes Notice of
Approval in the Newfoundland Gazette.
Introduction 2
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1.4 Approval Process
When the Municipal Plan is formally adopted by resolution of Council under Section 16 (1) of
the Urban and Rural Plannin Act 2000 Council ·ves notice of a ublic hearin on the
Municipal Plan. At the public hearing the Commissioner appointed by the Council will hear
objections and representations, and will then write a report to Council together with copies of
all submissions taken at the hearing.
After the Commissioner's report has been submitted, Council considers the recommendations
and may approve the Plan, or approve it with changes recommended by the Commissioner.
Council then submits the Municipal Plan and accompanying Development Regulations to the
Minister of Municipal Affairs to be registered in a planning registry established in the
Department. The Plan comes into effect on the date notice of its registration is published in the
Newfoundland & Labrador Gazette (Section 24(3)).
1.s Effect
When the Municipal Plan comes into effect it is binding upon Council and upon all other
persons, corporations and organizations.
1.6 Implementing the Plan
When a Municipal Plan comes into effect, Council is required to develop regulations for the
control of the use of land, in strict conformity with the Municipal Plan, in the form of Land Use
Zoning, Subdivision and Advertisement Development Regulations. These "Development
Regulations" are prepared and approved at the same time as the Municipal Plan, and like the
Plan, may be amended at any time to include new land uses and specific regulations.
Day-to-day administration of the Municipal Plan and Development Regulations will be
conducted by staff members authorized by Council, who will issue permits for developments
approved by Council. Staff will also make recommendations to Council on matters pertaining to
development in accordance with the Municipal Plan and enforce the regulations.
Details about the Implementation of the Plan can be found in Section 7: Implementation.
1.1
Reviewing and Amending the Plan
Under the Urban and Rural Planning Act, 2000 Council must review the Plan every five years
from the date on which it comes into effect, and if necessary, revise it to reflect changes in the
community that can be foreseen during the next 10-year period. The Plan may be amended as
necessary prior to the five-year review in response to new development proposals, changed
policies, or community priorities. Such amendments must follow the process outlined in
Sections 14 to 24 of the Urban and Rural Planning Act, 2000.
Brigus Municipal Plan
Introduction 3
1.s Interpretation
In this Municipal Plan:
"Council" shall mean the Council of the Town ofBrigus.
"Development Regulations" shall mean the Brigus Land Use Zoning, Subdivision and
Advertisement Regulations.
"Municipal Planning Area" shall mean the Brigus Municipal Planning Area.
"the Plan" shall mean the Brigus Municipal Plan
"Town" shall mean the Town of Brigus.
"Historic character'' refers to the development pattern, architectural and outdoor features
established in Brigus prior to confederation, particularly the built form that emerged
during the 19th century at the height of Brigus' development.
The boundaries between the different land uses designated in the Municipal Plan are meant to
be general, except in the case ofroads or other prominent physical features where they are
intended to define the exact limits of each category of land use.
Nothing in the Plan shall affect the continuance of land uses which are lawfully established on
the date that this Plan comes into effect.
Brigus Municipal Plan
Introduction 4
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2 Planning Cont xt
2.1
Development Pattern
Brigus is located in one of Newfoundland's earliest
settlement regions. 1 Through success in the cod
fishery and sealing industries, the town flourished to
the height of its development in the mid to late 19th
century. During this period, Brigus' distinctive
townscape was established through building form,
scale, architectural features and a development
pattern of houses placed along narrow roads with
wooden fences and stone walls - all of which are still
evident today. 2 Adding to this distinctive character of
the old town are its ponds and watercourses and large deciduous trees. This area consists
mostly of residential dwellings but also contains many of the town's businesses and public
buildings. The historic
townscape of Brigus is regarded
as both a local and provincial
heritage resource. It is
promoted as a destination for
tourists and attracts
recreational boaters to its
harbour and a growing number
of seasonal residents who have
contributed to the revitalization
of the town's built heritage.
Further inland, beyond the old town is an area of more modern development which is mostly
residential in nature but also includes farmland, public buildings and businesses. Along the
Conception Bay Highway there is a mixture of commercial and residential development Beyond
that to the west is the Gullies area which is comprised of large lot rural residential development
and farmland. Further inland, east of the Roach e's Line is an area of land reserved as the
watershed for the Town's water supply source.
A more de ailed oveNiew of the planning context can be found in Appe dix B, Municipal Plan Background
Report.
2 While historic buildings in Brigus vary, generally the houses have a simple for , are clad in narrow four inc
wood clapboard siding, painted white, with six inch wood trim around double hung windows, doors and buildi g
co ners. A distinctive porch style developed in Brigus with a rounded roof and glazed doors and sides. Sheds
and other accessory b ildings have historically matched the materials, roof shape, and colours of the main
o se.
Brigus Municipal Plan
Pia ning Context s
Undeveloped rural parts of the planning area provide other resources for residents; most
notably blueberry grounds, community pasture, agricultural lands and forest resources.
Prominent hills, rid elines and coastline of ex osed bedrock rovide a natural settin that
complements the historic townscape and adds to the unique character of the community.
Extensive wetlands and streams empty into Harbour Pond in the heart of the
Historic district. In this area, the Brigus stone walls have been used to
stabilize and channel the stream banks, creating a distinctive feature of the
Brigus townscape. Around Harbour Pond, new development is resulting in
infilling of the pond to expand yards, create parking space and docks for
boaters. Beaver Pond, situated in the historic district is surrounded by
residential development. A third pond - Frog Marsh Pond - is located at the
end of South Side Road, has historically been used for recreation and leisure
activities.
A public wharf provides docking facilities for commercial and recreational
boats at the mouth of Harbour Pond. Elsewhere along the shoreline,
particularly to the south to An ties Beach the construction of wharves and
docks is leading to an infilling in the harbour and loss of public access to the
shoreline. Bishop's Beach is a popular public recreation area.
2.2
Climate Change Vulnerability
In an era of increasing concern about the potential impacts of climate change, Brigus is
particularly vulnerable. Existing development along the channelled streams in the historic
district and low lying areas around Harbour Pond and wharves and docks along Brigus Bay are
all at risk from more intense and frequent storms, floods, erosion, storm surges and rising sea
levels. Future development must be managed to anticipate and prevent damage to persons and
property as a result of climate change impacts. Preventing development in areas vulnerable to
flooding and improving the design of infrastructure in vulnerable areas are means by which the
Town can protect itself.
2.3
Population and Housing Need
Over the past two decades, the year-round population of
Brigus has declined (see figure to right). Today, the
community of approximately 820 residents is composed
of an increasing proportion of older residents. While the
number ofresidents who are in town seasonally or
occupy second homes on an occasional basis is difficult
to capture through census data, anecdotal evidence
suggests that Brigus is becoming more and more a
seasonal community. This is evident in the increasing
number of houses constructed in the town since 2006,
Brigus Municipal Plan
1200
Ii 800
I i 400
Population of Brlgus
by census period, 1986-2011
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1986 1991 1996 2001 2006 2011
Sou...,, COOYT11Jn ty Accounts C2:l1 t)
Plan ing Context 6
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despite the declining population and economy (see
figure at right). At the same time, renovations were
New Home Construction In Brigus
by period of 5 years, 1991-201 O
bein made to old r
60
j 40
0 I 20
occupation by seasonal residents attracted to the
beauty and historic character of the community.
This activity has resulted in increased property
values and growing pressure on the Town for
development of lands, particularly in the historic
district, as landowners seek to take advantage of
higher land values and demand for seasonal
residences.
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1991-
1995
1996-
2001-
2000
2005
Source: Statistics Canada (2006)
Currently there appears to be sufficient land available for residential development in the
community to accommodate future needs well into the future. Provision for a greater range of
housing options is desirable as a means of addressing housing affordability, for seniors who
wish to remain in the town and for others who may be attracted to moving to the community.
2.4 Historic Preservation
2006·
2010
Following several studies, most notably a 1986 report called "What's So Special About Brigus? A
Townscape Conservation and Community Development Study" prepared for the Brigus Historical
and Conservation Society, the Town enacted regulations designed to preserve the built heritage
and fabric of the Historic Townscape in 1992. These regulations contained general principles
and guidelines with respect to the general form and scale of development, building height,
exterior appearance of siding, roof lines, doors and windows. It also addressed the style of
accessory buildings, fences, retaining walls and signs. In 1994, the guidelines were incorporated
into the Town's Development Regulations. While no longer guidelines, the regulations provided
for considerable exercise of Council discretion in decision-making with respect to managing
development in the historic district
Consultations held as part of the plan review process indicate that while there is community-
wide recognition of the importance of Brigus' heritage, residents articulate where to "draw the
line" diffe"rently.
In the intervening years since the regulations came into effect, various Councils have
experienced challenges with implementing these regulations, with varying degrees of success.
As a result, while the essential form of the historic townscape remains intact, alterations to
heritage structures and new development not consistent with the historic architectural form,
place the Town at risk of losing its distinction as a town that has preserved its historic character
- precisely those features that are key to its past, present, and future.
The challenge - and opportunity - for the community over the next planning period will be to
provide for new growth and development in a manner that integrates seamlessly into the
Brigus Municipal Plan
Planning Context 7
existing urbar fabric, particularly within and adjacent to the historic area. These updated
planning documents provide policies to protect the Town's historic townscape and the
investment that is bein made to reserve it while acknowled in the need for solutions that
can accommodate a range of affordabilities, modern services and conveniences, and
professional architectural interpretations of the historic style. As the historic character is
protected and enhanced, Brigus will remain an authentic, resilient community.
2.s Economic Development
Today, Brigus is a "tourism" town. Seasonal tourist accommodations, services and events such
as the annual Blueberry Festival continue to attract visitors from all over the world. Brigus is
well-positioned to build on the provincial tourism marketing strategy that emphasizes
creativity, genuine and friendly people, cultural vibrancy and heritage, and the rugged beauty of
the natural environment The sustainability of economic prospects garnered through the
tourism industry relies to a large extent on the historic townscape character and distinctive
natural setting of the community.
Over the past decade, private investment in new development and renovation in the residential
sector has contributed to the local economy and general prosperity of the community, creating
employment and an increase in property values. This is expected to continue over the planning
period as Brigus is likely to remain a residential community. Permanent residents will continue
to rely on a mix of income sources generated within the community and the wider region.
2.6
Municipal Services
The town of Brigus has a low debt servicing ratio. As a result, it has sufficient means to borrow
funds for needed capital infrastructure investment In recent years, investment in new
development and the renovation and restoration of existing buildings has had the effect of
increasing property values and improving the community's tax base.
Water and sewer services have been provided to the Station Road areas and most of the older
part of the town. Currently, service extensions are being planned for Riverhead. A program of
street upgrades are being implemented as part of a municipal capital works program. As a
participant of the regional waste management process, municipal waste is sent to the
Robinhood Bay Regional Landfill in St. John's.
The Town has recently invested in improvements
to its municipal fire hall and depot located in the
heart of the historic area. During the
consultations, it was suggested that the Municipal
Depot be relocated and the property utilized to
increase public space and amenity.
'7...
Brlgus Municipal Plan
Planni g Context 8
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a Vision and Planning Goals
3.1
Community Vision
With a rich and colourful history, we delight in our past while looking
to a future in which Brigus is a safe and vibrant community, where
we share with visitors our pride in our traditions, built heritage and
stunning natural surroundings. We attract new residents by providing
opportunities for active living, quality municipal services and good
governance.
Brigus Municipal Plan
Vision a d Planning Goals 9
3.2 Community-Wide Goals
The following community-wide goals are consistent with the Vision and will guide the Town of
Brigus over the next decade:
Protect the character of the historic townscape
Brigus has a rich history, the story of which is told through the built heritage that remains in the
community today. Protecting our community culture, attracting new residents and sustaining
the tourism industry is dependent on protecting the stunning natural hillsides, historic
architectural styles and the traditional layout of buildings and streets in relationship to one
another, the land and water.
Promote practices of environmental stewardship
Good stewardship of the natural environment means protecting our land and water resources
as healthy ecological habitats for fish and wildlife, as clean and reliable sources of drinking
water and as opportunities for recreation.
Support an authentic and resilient local economy
Supporting an authentic and resilient local economy means ensuring that land is designated for
continued fishing activity and related processing industries, while at the same time expanding
our tourism services and showcasing our built heritage and spectacular surroundings to
visitors. We will be ready to respond to new opportunities and changes within the regional
economy.
Enable the health and well-being of community members and visitors
Brigus is a safe and attractive community for people to explore on foot, bicycle, boat, and more.
We will continue to improve the health and well-being of our citizens by supporting active
lifestyles with new trails, programs and other opportunities for recreation for all ages.
Establish clarity of requirements for development and renovation
Through the Municipal Plan and Development Regulations, Council is committed to improving
the clarity of requirements making development and renovation processes easier to follow.
Through these improvements the historic townscape and natural environment will be better
protected for current and future generations of Brigus residents and visitors.
Invest wisely to ensure high quality of municipal services
Maintaining municipal infrastructure and providing a high level of municipal services is a
priority of Council. We will carefully manage municipal infrastructure assets, balancing
investment to extend municipal water and sewer services with the need for ongoing
maintenance to ensure high quality of potable water, safe streets, waste disposal and recreation
facilities.
Brigus Municipal Plan
Vision and Planning Goals 1 O
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4 Community-Wide Policies
The Town will pursue the following and use objectives in order to achieve its community-wide
goals:
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Provide for future residential, commercial, industrial and rural resource development in
appropriate locations to accommodate future growth of the community.
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Protect the natural and scenic assets of the community by ensuring that development
occurs in an efficient, environmentally safe and responsible manner.
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Recognize and protect the historic townscape fabric, built heritage and cultural
landscape of the community for its aesthetic, cultural, social and economic value.
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Manage investment in municipal infrastructure to ensure a well maintained and
efficient level of services.
The following policies shall apply to development throughout the Brigus Planning Area:
Policy G-1
Management of growth and development
It is a priority of Council to minimize costs of municipal servicing by directing new development
to areas that can be easily serviced from existing water and sewer infrastructure. Infill
development is the preferred form of new development. Empty buildings and lots that are
currently out of use provide an opportunity for new residential and commercial uses within
existing built up areas of the Town.
Polley G-2
Townscape character
It shall be the intention of Council to protect and enhance the town's unique sense of place and
ensure that new development is consistent with current style, size, scale and form of
development in the town, with special consideration given to the designated Historic
Townscape Area.
Polley G-3
Preservation of stone walls & river embankments
As part of the Town's goal to retain the historic
townscape of Brigus, it shall be a priority of Council to
protect the characteristic stone walls and river
embankments. Removal of these walls and
embankments is prohibited, and their repair must
utilize traditional materials and not be replaced with
poured concrete or pre-cast retaining wall blocks or
other incompatible materia s. Traditional materials
shall a so be used for construction of new walls and
embankments.
Brlgus Municipal Plan
Community-Wide Policies 11
Policy G-4
The Brigus coastline
The shores of Brigus Bay, Brigus Cove and Harbour Pond are valued community assets
rovidin o
ortunities for recreational activities such as swimming, boating, fishi ng and
passive recreation. Maintaining an open and accessible shoreline shall be a priority for the
Town, particularly at Bishop's Beach. The Town also recognizes the potential of shoreline areas
for the construction of marinas, boathouses,
jetties, wharves, moorings or other docking
facilities. Such structures and facilities must be
constructed in a manner that is sensitive to the
historic character of Brigus, not result in extensive
filling in of the shoreline areas or prevent
traditional public access and use of shoreline
areas.
Policy G-5
Community trails
Preserving the traditional footpaths and walking trails in Brigus will be a priority of Council.
Proposals for new development must identify and provide for the continuation of traditional
footpaths and trails, and may be required to provide a separation buffer in the form of a fence
or vegetation between a proposed development and existing pathway. Consideration may be
given to re-route a traditional pathway provided such re-routing retains the continuity and ease
of access of the pathway.
Over the planning period, Council will undertake a community evaluation to identify traditional
footpaths, public right-of-ways and other recreational trails, the location of which will be
incorporated into the Land Use Zoning Map.
Polley G-6
Scenic views & ridgelines
Exposed hills and ridgelines identified on the
Future Land Use Map surrounding the
community are a distinctive feature of Brigus.
It shall be a policy of the Town to consider the
visual impact of development that may be
proposed on these hills, particularly any
development that would project above the
ridgelines visible from public vantage points
in the Historic Townscape area. Council may
require a visual analysis to determine the
impact of a proposed development located on
the hillsides visible from Brigus Bay and other
points within the Historic Townscape Area.
Brigus Municipal Plan
Community-Wide Policies 12
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Polley G-7
Waterways and wetlands
The Town recognizes the natural and recreational value of
rivers, streams wetlands and ands to the character and
amenity of the Town and their important roles in
stormwater management and in providing habitat for fish
and wildlife.
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1. Council shall protect the water quality oflocal streams,
rivers and significant wetlands by ensuring that all
necessary Federal and Provincial approvals, including
setback requirements have been obtained prior to the
issuance of a building permit for development projects;
2. Development and activities that require works such as
water crossings, bridges, culverts, stream diversions and
stormwater management devices, shall be planned,
designed and constructed so as to ensure that fish
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habitat and passage is preserved, protected, and where possible, enhanced;
3. Over the planning period, the Town, in consultation with the Water Resources Manageme .t
Division of the Department of Environment and Conservation, will undertake appropriate
studies to define the floodplains along streams susceptible to flooding.
4. Council will explore opportunities to become part of the Provincial Government's Municipal
Wetland Stewardship Program. The program's principle goal is to help Towns, developers,
landowners and other wetland habitat stakeholders become more aware of the value of
wetlands within their jurisdiction and to empower them to undertake their own actions to
conserve these areas. By signing a Wetland Stewardship Agreement, Brigus will become
part of the Municipal Wetland Stewardship Program. Should such an agreement be made,
the Municipal Plan will be amended to reflect the area(s) covered by the agreement.
Policy G-8
Groundwater protection
Because most households in Brigus rely on groundwater as a source of drinking water, it is
important to ensure that groundwater sources are protected.
1. Private on-site septic systems, where permitted, shall be properly designed, installed and
maintained;
2. Where development on the basis of on-site septic systems is permitted, an assessment of
groundwater quantity and quality will be required in accordance with the Provincial
Department of Environment and Conservation Groundwater Supply Assessment and
Reporting Guidelines for Subdivisions Serviced by Individual Private Wells, 2009; and
3. The Town will work with the Water Resources Management Division of the Department of
Environment and Conservation to document and map all groundwater wells in the
community.
Brigus Municipal Plan
Community-Wide Policies 13
Policy G-9
Development in hazardous areas
Council shall prohibit development in areas that may be susceptible to erosion, flooding or any
other hazards. In areas designated for development, Council may require detailed engineering
studies to evaluate the suitability of the land for a development where backfilling is proposed,
or where there may be potential for flooding, erosion or other hazard to occur.
Policy G-10
Residential subdivision
1. Proposed subdivision oflands for residential, commercial and industrial development will
be subjected to evaluation for conformity with the goals, objectives and policies of this Plan
and the requirements of the Development Regulations.
2. In residential subdivisions, development of cul de sacs will be discouraged. Wherever
possible new development should provide street and pedestrian connections to existing
streets or provide for future street connections to adjacent undeveloped property.
3. Proposed subdivision developments will be subject to a comprehensive evaluation by the
Town including:
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An investigation of the physical features of the site to identify opportunities and
constraints to development. Where possible, the layout of roads should conform to the
topography;
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An assessment of how the development contributes to achieving the principles, goals
and objectives set out in this Plan;
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Review of comprehensive subdivision and engineering plans, including cost estimates
for the engineering works;
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A demonstration of how the pedestrian pathways, roads, grading and services mesh
with and connect to adjacent lands and provide for future access to undeveloped lands
in the area;
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A review of proposed landscaping, open space and provision of street trees;
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An investigation to ensure compatibility between the subdivision and surrounding land
uses and urban fabric; and
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The impact of the development on municipal finances.
It shall be a policy of the Town that the transfer of road right of ways to the Town in new
subdivision developments will be required to the full extent of the developer's property and
that no property shall be retained so as to prevent future development of adjoining lands.
Policy G-11
Servicing requirements & costs
As the Town is bound by a Limit of Servicing Agreement with the Province for cost-shared
funding for construction and maintenance of municipal infrastructure, it is the policy of Council
to require all proposed development located outside the Limit of Servicing area to construct any
new streets and services (or extensions to existing streets/services) to the highest level of town
standards, at the developers expense.
Brigus Municipal Plan
Community-Wide Policies 14
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PolicyG-12
Frontage on publicly maintained street
All new buildings, except accessory buildings, shall have appropriate frontage on a publicly
m intained road.
Policy G-13
Back Lot Development
Notwithstanding Policy G-12, back lot development,
or development of lots behind existing development
as illustrated at right, may be considered on a
limited basis in areas designated Residential Mixed
Use on the Future Land Use Map. Such development
may be considered where:
1. There is sufficient land for a lot to be
developed, but topography or other
constraints would preclude development of
adjoining lands on a more comprehensive
basis;
2. Where possible, the lot will be serviced by municipal piped water and sewer;
3. The lot will have adequate access to an existing public street;
4. There is no objection from abutting property owners who may be affected by the
proposed development;
5. No more than three dwellings shall be permitted on the shared access; and
6. Back lot development will not be permitted where it would prevent future development
of adjoining undeveloped lands.
Policy G-14
Provision of buffers
Where required by the Town, a separation distance between adjacent land uses that are
incompatible, such as between industrial or commercial development and adjacent residential
uses, may be required in the form of a buffer. Buffers may also be required to visually screen
uses from each other, reduce noise or impacts from exterior lighting. The required depth of a
buffer, screening, landscaping and noise attenuation features shall be determined by the Town
and financial guarantees may be required to ensure that required buffers are put in place.
Policy G-1s
Non-conforming uses
In accordance with the Section 108 of the Urban and Rural Planning Act, 2000, Council shall
recognize that any development or land use that legally exists on the day that this Plan comes
into effect, may continue. Where a building or use exists which does not comply with the intent
of the Plan and the designated use, it shall not be substantially expanded. Minor extensions may
be approved provided there will be no adverse effects on surrounding properties or the
environment and a change of from one non-conforming use to another more acceptable use
may be permitted.
Brigus Municipal Plan
Community-Wide Policies 15
Policy G-16
Discontinuance of a nonconforming use
It is Council's intention to phase out non-conformin uses over time. If a non-conformin use
ceases to exist for a period of more than one year, new uses for the property and/or building
must conform to the current land use designation and development must meet the development
standards as outlined in the Development Regulations. In exceptional circumstances, Council
may consider extending non-conforming use rights beyond one year following discontinuance
of a nonconforming use to a maxim um of 18 months.
In determining whether a legal non-conforming use has been discontinued, or in evaluating
proposals for a change from one non-conforming use to another non-conforming use, Council
shall take into consideration a fair balance between the individual landowner's interest and the
community's interest. A use shall be considered to be discontinued where:
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the scale or intensity of the activity can be considered to bring about a change in the
type of use;
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the addition of new activities or the modification of old activities is, in the opinion of
Council, considered remote from previous activities; or if the new or modified activities
can be shown to create undue additional or aggravated problems for the municipality,
the local authorities, or the neighbours, as compared with what went before.
Policy G-17
Home occupations
It is Council's intent to foster the growth of small businesses as home occupations in a manner
that is compatible with surrounding land uses. Businesses in the form of home occupations may
be considered in any residential dwelling in any land use designation within the community.
Business uses that consist only of an office in a dwelling will be a permitted use. Businesses
operating as home occupations shall not be highly visible, generate traffic, noise, odours or
create any potential hazards, by virtue of the nature of the business, to surrounding properties.
Policy G-18
Small-scale agriculture
Small-scale agricultural production in the form of community and market gardens, or for home
use may be considered within the built-up areas of the community. Livestock may be kept on
residential property if the lot is of a sufficient size to allow safe, nuisance-free dissipation of
wastes. Furthermore, the quantity and type of livestock are limited to what Council considers
traditional for households on small plots in the Planning Area. The keeping of home livestock
shall not be undertaken as a commercial operation and must not cause disturbance to adjacent
residential uses.
Policy G-19
Public utilities
It shall be a policy of Council to permit the location and placement of utilities throughout the
Planning Area, except the Conservation zone, provided that they do not cause pollution, present
danger to health, create a nuisance to residents or cause unsightliness. If deemed necessary by
Brigus Municipal Plan
Community-Wide Policies 16
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Council, adequate screening and buffering or other measures to minimize negative visual
·mpacts may be required.
Policy G-20
Signs
Signs and advertisements erected in the community shall be of high quality and located and
constructed in a safe manner in accordance with standards set out in the Development
Regulations.
Policy G-21
Property maintenance and safety
All building lots shall be landscaped to contribute to the public realm and townscape character.
The exteriors of buildings, particularly commercial
properties, restaurants, shops and stores, or any business
catering to tourists, shall be properly finished and
maintained to the satisfaction of Council. Owners of
dilapidated structures shall be required to repair or
remove them at their own cost if they present a safety
hazard or are deemed unsightly. Wrecked or inoperable
vehicles, boats, machinery or equipment of any kind shall
not be stored or abandoned where it may be in general
public view.
Polley G-22
Landscape alteration
Activities such as the filling in of low lying or steeply
sloped areas or cutting into hillsides to expand useable land area can have significant impacts
on wetlands, natural drainage and the stability of slopes, resulting in erosion and creating visual
impacts in the community.
1. Alteration of steep hillsides through the deposition of fill or by excavation, whether for the
purposes of creating land suitable for development or not, shall be prohibited. Land
disturbance affecting more than 50 square meters in area shall require application, review
and approval by the Town and show the full extent of disturbance that is intended. Council
may require applicants for such development to provide an assessment of geotechnical
aspects, visual and environmental impacts, as well as impacts on adjoining properties and
land use zones and;
2. Where alterations to the landscape are approved, financial guarantees may be required to
ensure adequate site rehabilitation and/or landscaping.
Policy G-23
Protection of archaeological resources
There are seven known archaeological sites in Brigus, six of them underwater that are
protected under the Historic Resources Act To ensure these and other potential historic
resources are protected, proposals for development involving major ground disturbance,
including works along the coastline shall be referred to the Provincial Archaeology Office,
Historic Resources D"vis'on, Department of Tourism, Culture and Recreation.
Brigus M nicipal P!an
Community-Wide Policles 17
Policy G-24
Assessment of proposals for development
Council may engage professional services for the review and assessment of proposals for a
development where, in the opinion of Council such an assessment is required to ensure that the
development inconsistent with the intent and policies of the Plan and standards set out in the
Development Regulations.
Brigus Municipal Plan
Community-Wide Policies 18
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an gi g L nd U e
Land use in Brigus will be managed in accordance with the general land use policies set out in
Section 4 of this Plan and policies for specific land use designations illustrated on the Future
Land Use Map as follows:
Historic Townscape
Residential Mixed
Rural
Environmental Protection
Water Supply Area
s.1
Historic Townscape
Objectives
1. To recognize and preserve the unique character of the historic Brigus Townscape
2. To preserve built heritage through sensitive renovation and provide opportunities
for adaptive re-use
3. To protect investment in built heritage by ensuring new development is consistent
with the historic building form, scale and archltectural features unique to Brigus
4.
Manage development to maintain the traditional appearance and pattern of streets,
streetscapes, waterways and public open space
5.
Expand the Historic Townscape Area to include the southside and develop policies
to manage new development in this area
Historic Area Policies
Policy H-1
Historic Townscape land use mix
The Historic Townscape land use designation takes in the historic settlement areas of Brigus.
Residential is a prominent land use in this zone; however, as the traditional heart of the
community, it also includes commercial, cultural, civic, public open space, marine and tourism
service uses. Council will encourage the continuation of this fine-grained and complementary
mix of uses within this area.
Within this land use designation, the Town will encourage a variety of types of housing and
commercial uses, particularly where such uses contribute to the preservation of historic
buildings.
Brigus Municipal Plan
Managing Land Use 19
Industrial uses will be limited to those associated with fishing and marine activities at the
harbour. Within this land use designation, mobile or prefabricated homes or uses requiring
open storage or large parking areas will not be permitted.
Policy H-2
Development of the Southside
It shall be a policy of this Plan to expand the Historic Townscape designation to include the
Southside, where the first buildings of Brigus were constructed. While there are presently few
dwellings in this area, it shall be the policy of this plan to require new development to be in the
form, architectural style and scale of the original buildings in this area, or where none existed,
of a form and scale similar to that of dwellings in the original Historic Townscape designation.
Policy H-3
Historic development pattern
It shall be a priority of Council to ensure that development preserves and complements the
historic development pattern by establishing appropriate standards for development,
restricting the widening of roads, and prohibiting the removal of stone walls and river
embankments. Council will encourage landscaping, the protection of traditional paths and
rights-of-ways and the construction and repair of wood fences and stone walls consistent with
the traditional appearance of the townscape.
Policy H-4
New development
New buildings (including accessory buildings) are not required to be replicas of existing
heritage buildings. However, within the Historic Townscape Area, new buildings will be
required to be compatible with the historic building form, scale, height, setbacks and
architectural features unique to Brigus. These requirements are specified in the Development
Regulations.
Policy H-5
Alteration of buildings with historic value
Repairs, renovations, alterations or additions to the building envelope of existing heritage
buildings or structures, shall, where possible, retain the characteristics and features of the
original building in accordance with requirements set out in the Development Regulations.
Policy H-6
Alteration of non-heritage buildings
Repairs, renovations, alterations or additions to the building envelope of existing non-heritage
buildings or structures, shall, where possible, be done in a manner compatible with adjoining
heritage properties in terms of building form, scale and architectural features.
Policy H-7
Accessory buildings
Small sheds, garages and greenhouses shall be permitted in association with permitted uses.
However, accessory buildings will be required to be of similar construction as the main building
on the property in terms of exterior cladding and roof line. Placement of accessory buildings
shall generally be in rear or side yards, but may be considered in front yards where such
placement is desirable by virtue of topography or preservation of views and in such cases, is
Brigus Municipal Plan
Managing Land Use 20
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part ofan overall plan for development of the property. Temporary accessory structures such
as portable canvas, baby barns or plastic shelters shall not be permitted.
Policy H-8
Parking
Parking lots and spaces associated with residential and commercial development in the Historic
Townscape Area shall not be of a size or located in a manner that will be detrimental to the
areas historic appearance and atmosphere. Shared use of parking lots will be encouraged.
Where possible, parking areas associated with commercial uses will be located in rear or side
yards with suitable screening or landscaping.
Polley H-9
Landscaping
Landscaping of properties in the Historic Townscape Area shall retain traditional fences in
accordance with standards that will be set out in the Development Regulations. In considering
applications for development, Council will consider the placement of such things as driveways,
access points, the placement and style of fences or other landscape features in relation to
adjoining properties and the impact on the streetscape.
Polley H-10
Signs
All signs within the Historic Townscape Area shall be developed in accordance with standards
set out in the Development Regulations.
Polley H-11
Heritage Advisory Committee
Council may establish a Heritage Advisory Committee to review and make recommendations on
proposals for development in the Historic Townscape Area, and to advise Council on heritage
issues.
Brigus Municipal Plan
Managing Land Use 21
s.2
Residential Mixed Land Use
Objectives
1. To provide sufficient area for future residential growth in the community
2. To recognize a traditional mix of land uses and provide for the continuation of mixed
development in the future
3.
To manage land use that ensures the peaceful co-existence of residential and other
uses
Residential Mixed Policies
Policy M-1
Residential Mixed Land Use Designation
The Residential Mixed land use designation extends outward from the historic townscape area
along existing streets and reflects the existing mixed use pattern of development that has
emerged over time. Council will continue to permit a mix of uses with commercial, institutional,
civic/recreational, and light industrial uses developed in a manner that is compatible with the
predominantly residential nature of the area. While single dwelling residential uses are the
predominant land use in the Residential Mixed land use designation, other forms of housing are
and will be required in the community such as double and row dwellings.
Policy M-2
Non residential uses
Non-residential uses in the Residential Mixed designation will be primarily located along the
main streets leading into the community - the Conception Bay Highway, Station Road and
Irishtown Road. A range of commercial, public, institutional, assembly uses, recreational uses
and a limited number of light and general industrial uses may be considered, but they shall be
designed and constructed so they do not create a nuisance or hazard to adjoining residential
properties. If necessary, such uses will be required to be adequately separated and buffered
from surrounding residential development. Adequate off street parking space must be provided
for these uses.
Policy M-3
Design and aesthetics
Although buildings constructed in the Residential Mixed designation are outside of the Historic
Townscape, Council shall encourage developers to construct buildings with the historic form,
scale and architectural features unique to Brigus. Council shall ensure that development for all
uses conforms to a high standard of building design, appearance and landscaping.
Policy M-4
Vehicle and pedestrian access
Council will require that new commercial, light industrial or higher density residential
development or redevelopments of existing buildings have well-designed access points that wil ,
enable the efficient and safe fl ow of vehicular and pedestrian traffic.
Brigus Municipal Plan
Managing Land Use 22
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Policy M-5
Parking, loading areas and outdoor storage
Parking and loading areas shall be provided for new development with commercial and light
industrial uses in accordance with standards rovided in the Develo ment Re ulations· and
Council shall ensure that all areas for outdoor storage associated with commercial and light
industrial uses, including the storage of waste, is located in rear or side yards, with appropriate
screening and containment
Policy M-6
Multiple unit residential development
Multiple unit dwellings must be located where they can be connected to the existing water and
sewer system. Where they are proposed to be located next to single dwelling residential uses,
they shall be designed and sited on the lot in a manner that does not create nuisance or conflicts
by virtue of placement of such things as exterior lighting, parking, balconies, waste receptacles,
driveways or accessory buildings.
Polley M-7
Subdivision and high density residential development
Residential subdivision and high density residential ( e.g. apartments) development will only be
considered for approval as part of a development agreement with a layout approved by Council.
Proposed subdivisions and higher density developments will be subjected to evaluation for
conformity with the goals, objectives and policies of this Municipal Plan and Development
Regulations.
s.3
Rural Land Use
Objectives
1. To permit existing natural resource lands and associated uses to continue and to
preserve land for future resource use and urban development within the town's
Planning Area
2.
To preserve and protect undeveloped rural lands for resource and low-intensity land
uses and conservation of natural areas
Rural Land Use Policies
Policy RU-1
Rural Land Use Designation
The Rural Land Use designation is applied to lands outside the built up area of the community
that include forested land, areas of steep hills, rock outcrops, rugged coastline areas, and other
natural areas used for traditional activities such as blueberry harvesting. There are also a few
small farms or lands used for agriculture that are also included in the Rural land use
designation. The purpose of the Rural land use designation is to accommodate, in appropriate
locations, rural resource uses such as agriculture and forestry, and conservation and outdoor
recreational uses such as parks and trails. Other uses, such as cemeteries, assembly uses,
Brigus Municipal Plan
Managing Land Use 23
aggregate resource extraction, industrial, uses docks and wharves and limited seasonal
dwellings may be considered in the Rural land use designation in areas where they are not
generally visible from the community or roads leading into the communit . Recreational uses
associated with the tourism industry such as cottages and trailer (RV) parks may also be
considered. Animal uses that are not considered agriculture uses such as kennels, can also be
considered.
Polley RU-2
Residential dwellings
Dwellings shall be restricted to a farm dwelling that is necessary for the operation of an
approved agricultural enterprise.
Polley RU-3
Environmental stewardship of rural and resource lands
It shall be a policy of Council to ensure that natural resource uses occur in a manner that is
environmentally sustainable so that these lands and resources can continue to be used by
future generations.
Policy RU-4
Agriculture
Development of commercial farming operations will be subject to a development agreement
between the Town and the operator.
Polley RU-5
Blueberry Management Units
It shall be the policy of Council to ensure that Blueberry Management Units in the Planning area
are retained as important economic and social assets of the community. Proposals for
development within any Blueberry Management Unit will be referred to the Agrifoods Branch,
Department of Natural Resources, for review and recommendation prior to and decision of
Council. Where a portion of a Blueberry Management Unit is within a Protected Watersupply
Watershed, all development and operation plans must be approved by the Water Resources
Management Division, Department of Environment and Conservation.
Polley RU-6
Mineral exploration and development
It is a policy of this Plan that all mineral exploration and development activities are to be
conducted in a manner that minimizes the adverse effects of such activities, and that the
derelict lands resulting from such operations are properly rehabilitated in accordance with a
plan approved by the Department of Natural Resources.
Brigus Municipal Plan
Managing Land Use 24
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s.4 Environmental Protection
Objectives
1. To protect identified waterways and wetlands as important wildlife habitat and for
their role In the management of stormwater
2. To enable the designation of other environmentally significant or vulnerable
waterways, land or coastal areas for environmental protection and passive
recreation use in the future
Environmental Protection Policies
Policy EP-1
Environmental Protection Land Use Designation
The waterways and wetlands of Brigus drain towards Brigus Harbour. As the community grows
outward from the historic core, it will be important to ensure that the capacity of natural
drainage systems is not reduced. Lands designated for Environmental Protection are intended
to protect waterways and wetlands, scenic landscape features of the community and to prevent
development in locations that may be hazardous by virtue of natural erosion, storm surge
events or flooding. Within this land use designation, Council regards conservation and
recreation uses, such as nature trails and nature interpretation, as acceptable uses.
Policy EP-2
Community partnerships
Council recognizes the contribution of groups and organizations that foster improved
environmental stewardship in the community and the region. Council will continue to support
and participate in Tidy Towns Newfoundland and Labrador to promote environmental
stewardship at the individual and community level and a sense of pride in community among
residents.
The development of passive recreation uses will be encouraged through partnerships with
community groups and organizations and neighbouring municipalities. Hiking trails,
boardwalks and nature interpretation structures will be designed and developed with minimal
environmental disturbance. Council shall support and assist community efforts to improve
natural areas for passive recreational uses, education and the preservation of fish and wildlife
habitat
Brigus Municipal Plan
Managing Land Use 25
5.5 Water Supply Protection
Objectives
1. To ensure that Brigus has an adequate supply of safe, high quality water that is
suitable for drinking and other purposes
Water Supply Protection Policies
Policy W-1
Water supply protection
This important designation protects the Town's water supply watershed that is within the
Brigus Planning Area. Within the Water Supply Protection land use designation, only uses that
are directly related to the functioning of the water supply system and conservation uses will be
permitted. Natural resource uses such as forestry or agriculture, or the construction of utilities
such as transmission lines may only be permitted with the approval of the Department of
Environment anci Conservation Water Resources Management Division.
PolicyW-2
Passive recreational use
Passive, non-motorized recreation uses, such as walking and hiking, may be permitted in this
land use designation. Any formal trail development must be designed by a qualified landscape
architect, including a thorough analysis of the impact to the water supply system. Trail
development must be done in accordance with the Provincial Policy for Land and Water Related
Developments in Protected Public Water Supply Areas.
PollcyW-3
Water supply protection awareness
It shall be the intention of Council to create awareness of the Town's water supply and the need
to protect it Council will consider awareness strategies, including but not limited to posting of
signs at various points along the boundary of the Protected Water Supply Area.
Brigus Municipal Plan
Managing Land Use 26
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s Municipal Servic s and lnfr structur
The provision of municipal infrastructure such as streets, sidewalks, water treatment and
distribution systems, sewers and sewage treatment facilities, and waste collection and disposal
are the primary responsibilities of municipal government. This infrastructure supports growth
and development of the community and contributes to community safety, health and well-
being.
Objectives
1. To maintain a safe and efficient movement of traffic on local roads and highways
throughout the planning area. In the Historic Area, maintain the traditional
appearance and pattern of roads. To ensure adequate parking lots that do not
negatively affect the appearance of the area
2. To ensure continued safety, supply and distribution of potable water in the
community
Municipal Services Infrastructure Policies (Transportation)
Polley MS-1
Local road standards and function
It is Council's intention to ensure the safety of vehicles, pedestrians and cyclists through regular
maintenance and upgrading of Town streets as part of the municipal capital works
programming.
Polley MS-2
Streets in the Historic Area
All roads in the Historic Area land use designation and Station and Irishtown Roads (within and
beyond the Historic Area) shall not be realigned, increased in size, or otherwise altered except
where no other measures are available to protect public safety. Straightening or widening these
roads would have a detrimental impact on the historic townscape.
Policy MS-3
Street right of ways
All development, including but not limited to buildings, fences, sheds, and parking lots, shall be
set back from the right-of-way of a road far enough to provide an adequate level of public safety
and space for snow clearing and maintenance. Specific consideration is given to development in
the Historic Area to allow smaller setbacks consistent with the historic development pattern.
Building setback requirements shall be set out in the Development Regulations.
Polley MS-4
Pedestrian pathways
It shall be a policy of Council, working with the Heritage Committee and residents, to identify
and map traditional footpaths and public rights of way throughout the community and to
develop policies to ensure that such routes are retained for public use.
Brigus Municipal Plan
Municipal Services and Infrastructure 27
Municipal Services Infrastructure Policies (Drinking Water)
Polle MS-5
Council will monitor the capacity and supply of water in the Protected Water Supply Area of
Brigus Long Pond and evaluate proposals for new development to ensure that the system has
sufficient capacity and water pressures to service the development
Policy MS-6
Water Pressures and fire flows
Council shall ensure that areas where it has been determined that water pressure cannot be
sustained at high enough levels to provide adequate firefighting capability, or which are not
located close enough to a water supply source suitable for firefighting purposes, shall be
excluded from development.
Municipal Services Infrastructure Policies (Wastewater and Stormwater)
Policy MS-7
Wastewater system policies
Council shall ensure that the Town's wastewater treatment facilities process wastewater in
accordance with Provincial Department of Environment and Conservation standards;
Policy MS-8
Stormwater management
In considering proposals for new development Council shall consider the impact of
development on the Town's natural drainage system. Development shall not be approved
where there is insufficient capacity in the storm water system to accommodate it.
Municipal Services Infrastructure Policies (Solid Waste)
Polley MS-9
Waste reduction measures
The Town will continue to participate in provincial waste management strategies. To minimize
costs of transporting and disposing garbage at Robin Hood Bay, Council will undertake
initiatives to reduce household garbage by encouraging residents and businesses to compost
and recycle.
Policy Ms-10
Municipal information management
The most current base mapping for the Town is outdated and is not available in a useful digital
format. Council recognizes the importance of having updated and improved digital base
mapping for the Town to assist in the review of applications for development and planning. The
Town will contact the Surveys and Mapping Division, Department of Environment and
Conservation to partner with them to acquire current digital mapping for the Town.
Brigus Municipal Plan
Municipal Services and Infrastructure 28
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1 lmplementati n
The Brigus Municipal Plan serves as the blueprint for the community's future development.
The Town's role in implementation is to help guide and shape growth through private
investment and in effect, implement the Municipal Plan in a cooperative framework with the
private sector. Municipal services, regulations and expenditures are a means to encourage or
discourage the extent and form of new development.
Successful implementation of the Plan involves:
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effective administration of the Plan;
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adoption of Development Regulations;
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adoption of annual municipal capital works budgets;
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preparing and implementing recommended studies;
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a consistent procedure for considering amendments to the Plan; and
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working in partnership with citizens, groups and organizations to achieve the collective
goals of the Community.
1.1 Administration of the Municipal Plan
The Municipal Plan must serve as a continuing reference and guide to Council and its officials in
order to achieve the goals, objectives, policies and programs which it contains.
The boundaries between land use designations on the Future Land Use Map coincide where
possible with roads, fences, property lines or other prominent physical features. Where a
property proposed for development straddles more than one land use designation, minor
adjustments to the boundaries between the land use designations may be made without
amendment, to accommodate the development.
All proposed development within the Planning Area must conform to the policies of the Plan
and Development Regulations, and be approved by Council. Council will ensure that
development proposals are given a comprehensive review, including circulation to appropriate
public departments and agencies.
Council may refuse or approve applications, with or without conditions. Decisions of Council
made according to the provisions of this Plan and the accompanying Development Regulations
may be appealed to the appropriate Appeal Board established under Part VJ of the Urban and
Rural Planning Act, 2000.
1.2 Development Regulations
To implement the goals, objectives and policies of the Municipal Plan, Council will prepare and
adopt Development Regulations pursuant to Section 35 of the Urban and Rural Planning Act
Brlgus Municipal Plan
Implementation 29
All land within the municipal planning area will be covered by land use zones which provide
detailed requirements such as lot size, frontage, building setbacks and parking standards.
Considerations for Rezonings
In order for consideration of any proposals for an amendment to the Development Regulations
(i.e., a rezoning), Council shall require a clear proposal to be submitted. Such a proposal must
clearly show:
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The location of the subject property, to scale, showing lot dimensions, area, street
frontages;
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The means by which the site is/will be serviced;
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The proposed location of all driveways and parking areas;
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Areas that are to be landscaped or left in a natural state to provide necessary buffers;
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The proposed location of all buildings on the site; and
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Existing land uses, including natural hazards or sensitive natural areas both on-site and
on adjoining properties that may be affected by the development.
Criteria to be Considered
In its review of proposals for amendments to the Development Regulations, Council shall
consider all appropriate policies set out in this Plan and have regard for the following:
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The financial ability of the Town to absorb any costs relating to the development;
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The adequacy of municipal water and sewer services, or where on-site services are
proposed, the adequacy of the physical site conditions to accommodate it;
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The adequacy and proximity of schools, recreation and community facilities;
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The adequacy of the road network in, adjacent to, or leading to the development;
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The potential for the contamination or sedimentation of watercourses or for erosion;
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Environmental impacts such as air, water and soil pollution and noise impacts;
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Previous uses of the site which may have caused soil or groundwater contamination;
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Suitability of the site in terms of grades, soil and bedrock conditions, location of
watercourses, marshes, swamps, or bogs;
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Compatibility of the development in terms of height, scale, lot coverage and bulk with
adjacent properties; and
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That the proposal is in conformance with the intent of this Plan and with the
requirements of all other Town by-laws and regulations.
Public Consultation
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Council is committed to consultation with citizens;md'will seek input from the public on
planning and development matters that:
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Require an exercise of Council discretion in arriving at a decision on a development
application;
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Involve significant development proposals that are of interest to the community at
large;
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Would require a change of Town policy, amendment to the Plan or Development
Regulations; and
Council shall follow the procedures and processes for public consultation as set out in the
Development Regulations consistent with the requirements of the Urban and Rural Planning
Act, 2000.
7.4 Amending and Reviewing the Municipal Plan
Since conditions in the Town may change during the planning period, amendments to the
Municipal Plan may be adopted by Council from time to time. Council may consider
amendments to the Municipal Plan when:
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There is an apparent need to change policy due to changing circumstances;
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Studies have been undertaken which contain recommendations or policies which
should be incorporated into the Municipal Plan;
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A Provincial Land Use Policy has been released that requires a change in policy by the
Town; and
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There is a development proposal which provides sufficient information and rationale to
support a change in the Municipal Plan.
After five years from the date on which this Plan comes into effect, Council shall review the Plan
and revise it if necessary. Revisions will take account of development which can be foreseen
during the following 10 years. Amendment and review of the Plan shall be carried out in the
same manner as this Plan was brought into effect
In accordance with Section 27 of the Urban and Rural Planning Act, 2000, Council will charge a
proportion of the cost of carrying out an amendment to the person or association of persons,
who request an amendment. The proportion to be charged will be set by Council as part of its
annual budget process in setting its Schedule of Rates and Fees. The costs may include, but are
not limited to research and preparation of amendments, public notices and consultation,
administrative processing costs and the costs associated with a Public Hearing.
1.s Municipal Land Assembly
Municipalities are empowered by the Municipalities Act to acquire lands for municipal works or
economic development purposes. Such projects generally entail the Town acquiring parcels of
land from private landowners or other levels of government for a variety of reasons including:
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To facilitate new growth and development in an area which is actively being revitalized
or redeveloped where such land assemblies cannot by virtue of time or money be
assembled privately;
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To facilitate the development of municipal parks, recreation and conservation areas;
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To facilitate development of municipal parking lots;
Brigus Municipal Plan
Implementation 31
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To encourage or make available lands which by virtue of ownership are not available for
development but which are necessary for logical and contiguous growth of the
community; and
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To facilitate redevelopment of a major non-conforming use where the redevelopment is
either a conforming use of is consistent with the Municipal Plan.
During the planning period, Council may undertake land assembly project and transactions
which are consistent with the objectives of this Plan.
7.6 Professional Advice
Council may obtain professional advice in regard to any proposed amendment to the Municipal
Plan or Development Regulations or in regards to the evaluation of proposals for development
within the community, where, in the opinion of Council, such advice is warranted.
1.1 Municipal Budget and Capital Works Program
Council shall continue to invest in municipal water and sewer services including upgrade and
maintaining the watersupply, treatment and distribution system and sewer services throughout
the town. An annual program of capital works shall be undertaken with the following
investments scheduled for 2011 and 2012.
Summary of Municipal Capital Works, 2011
Conception Bay Highway Water Main Loops
$ 133,309.84
Riverhead Water Main Loops
$ 130,871.61
Farm Road Water & Sewer Services
$1,424
Gullies Road Sewer Services
$ 620,639.09
Conception Bay Hwy Part A Sewer Services
$ 1,033,584.42
Subtotal
$ 1,919,828.96
Summary of Municipal Capital Works, 2012·
Ridge Road Water & Sewer Services
$940,919.70
Path End Water & Sewer Services
$ 325,733.27
Conception Bay Hwy Part B Sewer Services
$ 308,941.84
The Old Road Water & Sewer Services
$ 106,951.83
Subtotal
$ 1,682,546.64
Total (2011 & 2012)
$ 3,602,375.60
Brigus Municipal Plan
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Appendix A - Future Land Use Map
Brigus Municipal Plan
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Appendix B - Municipal Plan Background Report
Histo
Settlement in Brigus began around 1610, in close proximity to the newly established Cupids
colony. The population grew slowly from a few inhabitants to only 34 by 1675 ( 65 years later).
By the late 17th century, Brigus became known as a prosperous fishing community with a total
of five fishing rooms and where residents were also raising cattle and pigs. Despite being
attacked by the French on two separate occasions, Brigus persevered and developed a
successful cod fishery.
A combination of geographic factors produced ice-free conditions along the Brigus Harbour,
which made the area an ideal location for a principal sealing base. The population of Brigus
grew, peaking in the 1860s and 1870s. Some of the new settlers included rich landowners, high
ranking political figures and sea conquering heroes. It soon became known as a wealthy
Captain's town and the historic area as it stands today reflects this legacy. During this time,
fishing and sealing vessels lined the Brigus harbour and it was said that one could walk across
the harbour by stepping from schooner to schooner. Since available harbour space was hard to
come by, the Bartlett family contracted a miner to blast a tunnel through solid rock to allow
greater access to the harbour. The tunnel is one of the few reminders of the seal industry that
remains today.
Compared to other coastal communities in Newfoundland that were developing in the late 19th
century, the houses in Brigus were large, faced the street and were located in prime locations.
Architectural features of these houses included narrow wooden siding with wide corner trim,
double hung windows, chimneys, dormers and two storey massing. There were decorative
touches on the houses, including cornices, dentils, lattices, railings and brackets. The "Brigus
Porch" is a decorative feature which is unique to Brigus. It is characterized by a distinctive
rounded roof and glazed doors and sides. The stone walls along the river canals of North Brook
and Lambs Brook, uniform picket fences, cast iron gates and decorative landscaping are
indicative of the community's history of prosperity.
The influence of the English population is displayed in the architecture within the community,
particularly the gable-roofed houses. There are a few Victorian houses with flat roofs within the
community- a design imported from warmer areas not accustomed to the amount of snow
Newfoundland receives. One of the most notable examples of English architecture is Hawthorne
Cottage, home of the famous sealer and explorer, Captain Robert A. Bartlett. The house was
built in 1830 and was designed as part of the picturesque movement that aimed to create
harmony between landscape design and architecture. One of the most notable features of the
residence is a trellised veranda. The trees surrounding Hawthorne Cottage, such as maple, oak,
pine, beech, ash and weeping willows were imported from England and Scotland.
Brigus Municipal Plan
Appendices 34
As the seal hunt began to decline during the 1880s and into the 1890s, so did the population of
Brigus. Nevertheless, manylllariners continued to sail from Brigus and the community began to
rel more on the inshore fish.er . In 1894, the Hiscock famiJ established .W. Hiscock Sons Ltd
and opened two fish processing plants. There were attempts to provide alternate industries in
the Town, but many were unsuccessful. A knitting mill opened in 1953, but was closed shortly
after in 1956.The cod moratorium in 1992 hit Brigus hard, and resulted in the closure of one
fish processing plant in 1993. To this day community members of Brigus are still connected
with the fishery, whether d irectly or indirectly. Many are employed by the Independent Fish
Harvesters (IFH) who took over operations from J.W. Hiscock Sons Limited in 2004. Currently,
IFH is still managed by am ember of the Hiscock family. Brigus' deep roots in the fishing and
sealing industries are reflected in the cultural and built heritage of the community today, with
its centre clustered in the c oves near the rocky shoreline and looking out to sea.3
In recent years the com mu ni ty has taken advantage of its rich history through the tourism
industry. Brigus is one of the few places on the Avalon Peninsula that preserved its historic
buildings and community character. As tourism continues to grow, it is of upmost importance
that the Town continue to JJreserve this historical legacy, in particular the history of Brigus
harbour and surrounding a rea.
Steps have been taken by tlie Town to protect buildings and neighbourhood character in this
area by designating a Histo rtc Zone with specific Historic Town Design Regulations and
registering houses as Histo ric Structures. Registered historic houses include:
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Bartlett/Burke House,
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Landfall/Kent Cottage,
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Stone Barn,
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Fowler House,
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Joseph Bartlett House,
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St. George's Anglican Church and
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Hawthorne Cottage,which is also a National Historic Site.
Social and Cultural
According to the most recent census, the population of Brigus was 820 (NL Community
Accounts, 2006).At a rate s imilar to the overall provincial trend, the population of Brigus
decreased by 1.8% since the last census in 2001, and by 20% in the last twenty years. The
decline in population size s peaks to the closure of the cod fishery and decline in the processing
industries within Brigus and the province as a whole; a period when many Newfoundlanders
sought employment in larger urban centres, like St John's and outside of the province.
3 Thorough historical accounts of Brigus' settlement pattern and architecture can be found in the
Townscape Conservation and Community Development Study (1986), Ten Historic Towns (1 978) and
the Encyclopedia of NewfounrJ/and (1981-94).
Brigus Municipal Plan
Appendices 35
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In 2006, Brigus' median age was higher at 45 than the province as a whole at 42. 17.1 % of the
-1--n-1------PC!,!P'4"PCJdu......_latioD are seniors (age 65 and aver) and 43 9% of the pap1Jlation are 50 or older 83% of
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the houses in Brigus were owned by people of the age 55 and over, which was a much greater
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percentage than in the province as a whole (68%). Brigus also had a low proportion of residents
between the ages of 20 and 39 years, particularly males due to out-migration. These statistics
indicate that the population of Brigus is aging overall, with a large number of retired
homeowners. The population of Brigus' surrounding region is expected to decline by 3% in the
next fifteen years; however, the seniors population is expected to grow by 65% (NL Economics
and Statistics Branch, 2010).
Even though population decreased, new houses have been built as increasingly Brigus becomes
a popular location for vacation and retirement homes (NL Community Accounts, 2006). The
Plan sets out clear policies to guide new future development.
The Town will likely continue to attract retirees and seasonal residents. Some younger families
may be attracted to live in Brigus for the benefits of a small, friendly community in a
picturesque setting and be willing to commute to St. John's. This would be most possible for
people with flexible work schedules, or who can work or "telecommute" at least partially from
home. Development of economic opportunities within the region will also help the community
retain the younger working population of the community.
There are particular sustainability concerns with an aging population, such as increased need
for certain health services, recreation facilities and programs, aging volunteers, low income
seniors, lack of seniors housing and care facilities, and accessibility issues for people in
wheelchairs or walkers. Seniors also hold a lot of wisdom, knowledge and experience that can
benefit the whole community. The nearest independent living facility for seniors is located in
Clarke's Beach, approximately 7 km away from Brigus. There .may be the need and market for
seniors housing with various levels of independence and care in Brigus in the coming years.
This Plan recognizes the needs associated with changing demographics, enables the
development of seniors housing and addresses accessibility issues in the built form of the
community.
Environment
The Town has embraced its scenic natura environment by building around the waterfront, and
incorporated the rolling cliffs, rivers, ponds and natural vegetation into the built landscape.
New development that respects and enhances natural environment will improve quality of life,
continuing the legacy of Brigus as an attractive place to live.
Th's Plan recognizes the importance of preserving waterbodies and wetland areas to ensure a
long term supply of potable water. Protecting blueberry marshes will ensure continued
Brlgus Municipal Plan
Appendices 36
traditional use of this cultivated natural resource. The Plan also identifies walking and hiking
trails, opening up natural SJJaces in the community for resident and visitor enjoyment and
promotin recreation and h ealth),'. lifesty<-1...:.e.;_s. __________________________ ~
Brigus is not unlike other colllmunities that are experiencing impacts from climate change. As a
coastal community, there is growing concern over coastal erosion and rising sea levels.
Residents will have to consider how land development practices need to be adapted within the
context of climate change. F or example, public and private developments should be setback far
enough from the coast that residents are safe and these investments are not damaged.
Economy
The growth of the tourism i ndustry in Brigus is reflected in the employment statistics, which
indicate that traditional resource industries continue to generate economic activity, but many
residents are employed in construction and manufacturing, professional services, and other
services including retail tra de, accommodation and food services. Brigus is well-positioned to
build on the provincial tourism marketing strategy that emphasizes creativity, genuine and
friendly people, cultural vibrancy and heritage, and the rugged beauty of the natural
environment The town's proximity to St. John's, an important gateway for tourists, needs to be
promoted alongside regiona l tourism strategies. Events like the annual Blueberry Festival can
continue to draw visitors froITT within and outside the province. The Town has also developed a
niche market attracting artists as special interest visitors. The sustainability of economic
prospects garnered through the tourism industry relies on the preservation of historic
character, and scenic views of the harbour and rocky shoreline. The updated Plan and
Development Regulations fo r design and construction in the Historic Area will help ensure that
the heritage of Brigus is preserved and the longevity in the tourism industry is sustained.
This Plan supports a diversity of business development and employment opportunities in the
community by encouraging a wide range of business development opportunities, both in
identified commercial areas and as home-based businesses. The Plan recognizes that the
community is likely to remain primarily residential and upholds residents' values of beauty and
tranquility by putting controls in place to reduce conflicts and nuisance between residential and
other land uses. In the Plan period it can be expected that Brigus' residents will continue to rely
on mix of income sources: from work within the local crab processing industry and regional
tourism opportunities, to working in adjacent communities and St. John's, and from
seasonal/ long-distance commutes to other provinces.
Having a sustainable econo.l1ly also means that the Town uses tax revenues efficiently, and in
ways that will provide community-wide benefi ts. The Town of Brigus has a low debt servicing
ratio, sufficient means to borrow funds for needed capital infrastructure investment and a
stable tax base. An increase damount of seasonal home owners may create challenges in
sustaining the economy of B rigus; they will provide revenue to the Town through taxes,
Brigus M nicipal Plan
Appendices 37
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however, do not contribu e to school enrolment or community activities in the "off season",
they require goods and services from businesses when they are not there, and can cause an
+--4 _____ ....:..:..:.::.:....:==c:....t:'.==..:J.__---'-v_,,,a.,_.,lu~e'""s'---"a,,.n..,,d,._,c,,_,o=r_.__r=es__,o=n=hlg_p_r_oper_cy.1axes that year-rn.u11ou.dU-J..r.c:.es::).li.udcce.un...:ts .... m,-l<IGa.,,.y--------
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have difficulty paying.
Built Form
Past studies have shown that the architecture and character of the built form in Brigus, is not
only a cultural and tourism resource for the town, but for the Province as well. While the form
of historic houses in Brigus varies, generally the houses have a simple form, are clad in narrow
four inch wood clapboard siding, with six inch wood trim around double hung windows and
doors. Sheds and other accessory buildings have historically matched the main house in using
four inch wood clapboard and six inch trim boards. White was the most predominant paint
colour used and became known as "the Brigus colour" (Brigus Development Study, 1990;
Townscape Conservation and Community Development Study, 1986).
This Plan addresses the need for clearer policies and development regulations in the Historic
Area of Brigus, which will apply to renovations of existing structures and any new
developments within the area. The Town has already taken steps in preserving its heritage by
implementing Historic Town Design Regulations in 1992. The 1992 regulations are
incorporated into one complete and updated Development Regulations document and improve
the clarity and level of detail regarding what is permitted within the area. By taking additional
steps to protect the built form of the town, the Plan will ensure a sustainable Historic Area,
which will provide better opportunities for the tourism industry in the community.
There is little room for new development within the Historic Townscape Area, therefore the
Plan encourages adaptive reuse of existing buildings within the area and identifies land outside
of the area to accommodate new development within the community. A challenge for Brigus is
to encourage development which uses existing infrastructure such as road, water and sewage
systems. The Plan sets out clear policies to guide new growth in a manner that is in line with the
character of the town, and located close to services so that walking is encouraged. The Plan
provides opportunities for different forms of housing that will accommodate the aging
population.
Brigus Municipal Plan
Appendices 38
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Appendix C - References & Information Sources
Town of Bri us Studies
Brigus Development Study (1990, August). Prepared for the Town of Brigus by International
Management Services Group Inc.; Frederick Hann and Associates Ltd.; Architecture &
Design Incorporated-Pratt, Henley, Blackwood; Elliott and Elliott Ltd.
What's so special about Brigus? A Townscape Conservation and Community Development Study
(1986, N ovem her). Prepared for the Brigus Historical and Conservation Society by
Frederick Hann Associates Ltd. Landscape Architects - Resource Planners; Atlantic
Consulting Economists Ltd.
Brig us Townscape Study (1971, July). Prepared by Project Planning Associates, St. John's,
Toronto & London.
Other References & Resources
Brigus Historical Zone. Canada's Historic Places. Available online: www.historicplaces.ca
Encyclopedia of Newfoundland and Labrador (1981-1994). St John's: Newfoundland Book
Publishers. Available through Memorial University of Newfoundland Libraries online:
http://collections.mun.ca
Hamilton, L.C. and M.J. Butler (2001). OutportAdaptations: Social Indicators through
Newfoundland's Cod Crisis. Research in Human Ecology. Vol. 8(2): 1-11.
Macdonald, M. B. Neis, B. Grzetic (2005). Making a Living: The Struggle to Stay. People and the
Sea - Centre for Marine Research - Conference Paper, July 7-9, 2005. Accessed March 1,
2010 from www.marecentre.nl
Macdonald, M., B. Neis, G. Murray. (2005). State Policy, Livelihood Protection and Gender in
Coastal Communities. People and the Sea - Centre for Marine Research - Conference
Paper, July 7-9, 2005. Accessed March 1, 2010 fromwww.marecentre.nl
Macdonald, M. (2004). The Crisis in Rural Labour Markets: Failures and challenges for
Regulation. From J. Stanford and L.F. Yosko (Eds) Challenging the Market: the struggle to
regulate work and income. Kingston: McGill-Queens Press.
Newfoundland Historic Trust (1978). Ten Historic Towns: Heritage Architecture in
Newfoundland. St. John's: Valhalla Press, by arrangement with the Newfoundland
Historic Trust. Available through Memorial University of Newfoundland Libraries
online: http://collections.mun.ca
Brigus Municipal Plan
Appe dices 39
Newfoundland and Labrador Community Accounts (2010). Brigus Community Profile. Accessed
June 1, from www.c<Jmmunityaccounts.ca
Newfoundland and Labrador Economics and Statistics Branch, April 2010. Population
Projections Newfoundland and Labrador, Medium Scenario for Economic Zone 17,
1986-2025, which includes Brigus. Seniors population considered as 65 years and older.
Wyman, Diana (2008). Fronilagging to leading: Newfoundland and Saskatchewan dig into the
resource boom. Canadian Economic Observer, May Issue. Statistics Canada - Catalogue
11-010. Accessed: September 3, 2008. From
http://www.statcan.ca/english/freepub/11-010-XIB/11-010-XIB2008005.pdf
Brigus Municipal Plan
Appendices 40