Cartwright, Labrador, Newfoundland and Labrador
· adopted 2023-12-06
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Town of Cartwright
Municipal Plan
May 2024
Municipal Plan
2024-2034
Town of Cartwright
Prepared by UPLAND Planning I Design
This page has been intentionally left blank.
Urban and Rural Planning Act, 2000
Resolution to Approve
Town of Cartwright Municipal Plan
2024
Under the authority of section 16, section 17 and section 18 of the Urban and Rural
Planning Act, 2000, the Town Council of Carwright
a) adopted the Town of Cartwright Municipal Plan 2024 on the 6th Day of December,
2023.
b) having no local newspaper, gave notice of the adoption of the Town of Cartwright
Municipal Plan 2024 by advertisement posted at the Town Office and local post office
on March 6, 2024.
c) sett[le 27th day of March, 2024 at 7:00 p.m. at the Town Office in the Town of
Car:,twright 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
ToWh Council of Cartwright approves the Town of Cartwright Municipal Plan 2024 as
adopted.
SIGNED AND SEALED this day of, "'J' u.,r\:e.. I '.J. t-h.
Mayor:
Clerk:
APPROVED MAY 8, 2024
(MOTION 24-039)
, 2024.
r Municipal Plan/Amendment
REGISTERED
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Urban and Rural Planning Act, 2000
Resolution to Adopt
Town of Cartwright Municipal Plan
2024
Under the authority of Section 16 of the Urban and Rural Planning Act, 2000, the Town
Council of Cartwright adopts the Town of Cartwright Municipal Plan 2024.
Adopted by the Town Council of Cartwright on the 6th day of December, 2023.
Signed and sealed this 1:2./-1-day of, Y u...t\e
I 2024.
Mayor:
Clerk:
Canadian Institute of Planners Certification
I certify that the attached Town of Cartwright Municipal Plan 2024, has been prepared in
acCQ[dance with the requirements of the Urban and Rural Planning Act, 2000.
Contents
1.
Introduction ......................................................................................................................................... 1
1.1. Purpose of the Municipal Plan .......................................................................................................... 1
1.2. Plan Preparation Process ................................................................................................................. 2
1.3. Approval Process ............................................................................................................................. 2
1.4. Implementing the Plan ...................................................................................................................... 3
1.5. Reviewing and Amending the Plan .................................................................................................... 3
1.6. Interpretation .................................................................................................................................... 4
2.
Cartwright's Context ........................................................................................................................... 5
2.1. Geographic and Historical Context ................................................................................................... 5
2.2. Population and Households .............................................................................................................. 8
2.3. The Economy ................................................................................................................................... 9
2.4. Land Uses ...................................................................................................................................... 1 O
2.5. Heritage Preservation ..................................................................................................................... 1 O
3.
Community Vision and Plan Objectives ........................................................................................... 11
3.1. Community Vision ........................................................................................................................... 11
3.2. Plan Objectives ............................................................................................................................... 11
4.
General Land Use Policies ................................................................................................................ 12
4.1. Directing and Managing Growth ..................................................................................................... 12
4.2. Central Services .............................................................................................................................. 15
4.3. Transportation ................................................................................................................................ 17
4.5. Housing .......................................................................................................................................... 21
4.6. Environment ................................................................................................................................... 22
4.7. Arts, Culture, and Recreation .......................................................................................................... 25
5.
Town Structure .................................................................................................................................. 28
5.1. Land Use Designations ................................................................................................................... 28
5.2. Mixed Use ...................................................................................................................................... 29
5.3. Commercial and Light lndustrial ...................................................................................................... 31
5.4. Rural ............................................................................................................................................... 33
5.5. Heritage Protection ......................................................................................................................... 35
5.6. Watershed and Environmental Protection ....................................................................................... 36
5. 7. Comprehensive Development ......................................................................................................... 38
6.
Implementation .................................................................................................................................. 39
6.1. Context .......................................................................................................................................... 39
6.2. Development Control ...................................................................................................................... 39
6.3. Development Permits ..................................................................................................................... 41
6.4. Non-conforming Uses ..................................................................................................................... 41
6.5. Development Agreements .............................................................................................................. 42
6.6. Municipal Plan Amendments ........................................................................................................... 42
6. 7. Amending the Development Regulations ........................................................................................ 43
7.
Schedules and Appendices .............................................................................................................. 46
Schedule 'A' - Municipal Planning Area ................................................................................................... 47
Schedule 'B' - Future Land Use Map ....................................................................................................... 48
This p~ge h?~ been ii:,tention~Hy left' q!ank. __
1.
Introduction
1.1. Purpose of the Municipal Plan
This document, the Town of Cartwright Municipal Plan ("Plan"), is Council's
comprehensive policy document to manage growth, development, and land use
within Cartwright's Planning Area over the next 1 O years. This Plan, prepared
under the authority of the Urban and Rural Planning Act, 2000, repeals and
replaces the Municipal Plan adopted in 1995.
This Plan establishes a vision and an associated set of policies and the Future
Land Use Map to guide growth and development in the Town of Cartwright and
its Planning Area. The vision and policies are implemented through the
Development Regulations, a document that contains the specific standards and
requirements for land use to ensure land is controlled and managed in
accordance with this Plan. Planning Area
The Planning Area for the Town of Cartwright includes all the lands wholly within
its jurisdiction (Figure 1 ). This area is considered the Planning Area and is
governed by Town Council, which exercises control over development within
this area.
Figure 1: Town of Cartwright Planning Area
Town of Cartwright Municipal Plan 2024
1.2. Plan Preparation Process
The Town of Cartwright's first Municipal Plan and Development Regulations
were adopted in 1982. The development of Cartwright's 2024 Municipal Plan
and Development Regulations began by reviewing the 1995 Municipal Plan and
Development Regulations, followed by a review of the 2012 draft Municipal Plan
and Development Regulations. Due to unforeseen circumstances, the Municipal
Plan and Development Regulations drafted in 2012 were not formally adopted
by the Town.
To collect feedback from residents, the Town conducted a "mail out" whereby
each property within the Town received a letter in the mail outlining the
Municipal Plan review process. It provided information on how residents could
provide their ideas, insights, and opinions about the future growth and
development of Cartwright. Once the initial engagement for the review and
update of the Municipal Plan was complete, a set of draft planning documents
(Municipal Plan and Development Regulations) were prepared.
1 .3. Approval Process
The Municipal Plan is formally adopted by resolution of Council. Under Section
17 (1) Notice of Adoption of the Urban and Rural Planning Act, 2000, Council
gives notice of a public hearing on the Municipal Plan. At the public hearing the
Commissioner, appointed by the Council, hears objections and representations
and writes a report to Council that includes recommendations and copies of
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 Department of Municipal
and Provincial Affairs for registration. The Plan comes into effect on the date that
notice of its registration is published in the Newfoundland & Labrador Gazette
(Section 24 [3]).
When the Municipal Plan comes into effect it is legally binding upon Council and
upon all other persons, corporations, and organizations proposing to develop or
use land within the Cartwright Planning Area. Higher levels of government are
not, however, bound by municipal planning rules but often do take them into
consideration in their decision making.
Town of Cartwright Municipal Plan 2024
2
1 .4. Implementing the Plan
Council is required to prepare regulations for the control of the use of land in
conformity with the Municipal Plan. This takes the form of Land Use Zoning,
Subdivision and Signage Regulations. These "Development Regulations" are
prepared at the same time as the Municipal Plan and, like the Plan, may be
reviewed and updated 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 to issue, refuse, and
revoke permits for developments approved by Council. Staff also make
recommendations to Council on matters relating to development in accordance
with the Municipal Plan and Development Regulations.
1.5. Reviewing and Amending the Plan
Under Section 28 (1) 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.
Town of Cartwright Municipal Plan 2024
3
1.6. Interpretation
In this Municipal Plan:
-
"Council" means the Council of the Town of Cartwright.
-
"Development Regulations" means the Cartwright Development
Regulations 2024, as amended.
-
"Municipal Planning Area" or "Planning Area" means the Town of
Cartwright Municipal Planning Area.
-
"Plan" means this Town of Cartwright Municipal Plan.
-
"Act," unless otherwise specified, means the Urban and Rural
Planning Act, 2000.
In this Plan, where:
-
"may" is used in policies, the Town may, but is not obligated to,
undertake future action.
-
"shall" is used in policies related to land use, the policy shall be
implemented through the Development Regulations.
The diagrams, sketches, and photos in this Plan are provided for illustrative
purposes only and are not considered policy. Schedules form part of this Plan
and are therefore considered policy.
The boundaries between different land use designations in the Municipal Plan
are meant to be general, except in the case of roads or other prominent
physical features where they are intended to define the exact limits of each
category of land use.
Finally, nothing in this Plan shall affect the continuance of land uses that are
lawfully established as of the date this Plan comes into effect.
Town of Cartwright Municipal Plan 2024
4
2.
Cartwright's Context
2.1. Geographic and Historical Context
The Town of Cartwright is located in Southern Labrador at the mouth of Sandwich
Bay and lies approximately 250 kilometres due east of Happy Valley-Goose Bay.
The town is connected to the broader region through Newfoundland and
Labrador's highway system. Cartwright is situated at the terminus of Highway 516,
which connects the town to Highway 51 0, one of the main transportation routes
through Labrador. Highway 510 connects L'Anse-au-Clair to Happy Valley-Goose
Bay and beyond. Before 2002, Cartwright was relatively isolated, without road
access to the rest of Labrador, but highway investments connecting Cartwright to
Labrador Straits in 2002 and Happy Valley-Goose Bay in 2009 have significantly
opened up the town and region.
....
Figure 2: Town of Cartwright Context in Newfoundland and Labrador
Town of Cartwright Municipal Plan 2024
5
By road, Cartwright is approximately 400 kilometres from Happy Valley-Goose Bay,
via Highway 516 and Highway 510. With over 8,000 residents, the Town of Happy
Valley-Goose Bay is the largest population centre in Labrador and is approximately
a five hour drive from Cartwright. Cartwright is also connected to Happy Valley-
Goose Bay via ferry service and by air. A passenger and freight ferry service operate
between Happy Valley-Goose Bay and Black Tickle, with a stop in Cartwright,
between July and November.1 The Cartwright airstrip is owned and maintained by
the Province of Newfoundland and Labrador, though service is limited throughout
the year.
Across Sandwich Bay lies the Akami-UapishkU-KakKasuak-Mealy Mountains
National Park Reserve, a 10,700 square kilometre national park reserve. Like the
National Park Reserve, Cartwright has a varied and unique landscape that
contributes to the overall sense of place in the community. Cartwright is defined by
its undulating coastlines, rolling hills, and wetlands, and there is a large number of
lakes that dot the landscape. Cartwright and its surrounding area are also
ecologically diverse.
Cartwright is located within the Boreal Shield Ecozone, characterized by long, cold
winters and short, warm summers. The region receives approximately 1 ,000
millimetres of precipitation annually.2 Forest cover dominates this ecozone, and
both coniferous (balsam fir, white spruce, black spruce, and tamarack) and
deciduous {white birch, trembling aspen, and balsam poplar) tree species are found
in the region. There is also a diversity of animal species that live within this area
including the woodland caribou, moose, and white-tailed deer.3
The extremely rich landscape in and surrounding Cartwright makes it abundantly
clear why Indigenous people lived and thrived in the area long before the arrival of
European settlers. Archaeological resources including paleoeskimo and maritime
archaic artifacts found in Cartwright point towards Indigenous presence in the
region long before Europeans.
George Cartwright, for who Cartwright is named after, was an English merchant
who established Cartwright in 1775. He established a fur and fishing trading post in
the community.4 Not only did the natural environment provide the resources which
allowed this trading post to thrive, but the surrounding hills provided topographical
advantages for defence, making Cartwright a centre for commerce in the region.
Cartwright's business was eventually sold to the Hudson's Bay Company in 1873.5
George Cartwright is memorialized in the town at several locations including the old
Graveyard, Caribou Castle Rock, and Flagstaff Hill.
In 1956, the community of Cartwright was formally incorporated as a Town (a
process whereby Cartwright was officially considered a municipality within the
Province of Newfoundland and Labrador), and the Municipal Planning Area was
established in 1980. Prior to this, Cartwright was under provincial jurisdiction.
Town of Cartwright Municipal Plan 2024
6
The Town of Cartwright's rich history is evident in the many historic buildings in the
community. St. Peter's Church, the former Hudson's Bay Company staff house and
store, and the United States Air Force radar station on Blackhead Hill are all
significant heritage structures. In 2020, the Lockwood School building, a building
formally holding significant heritage status in the community, was demolished-in
part due to the school's role in the Canadian Residential School System during the
20th century. 6
Town of Cartwright Municipal Plan 2024
7
2.2. Population and Households
According to the Statistics Canada 2021 Census, the population of Cartwright is
439 people, down from 504 people in 2011 , but a slight increase from the 427 in
2006. Since 1991, Cartwright's population has declined from 611 to its population
today of 439 people, a decline of over 28% (Figure 2).7 Over this same time period
(201 1 to 2021), the population of Labrador declined by 0.2%.8 Like many
communities across Newfoundland and Labrador, population decline increased
dramatically following the collapse of the cod fishing industry in the early 1990s.
Although precise numbers are not available, the factors driving the declining
population of Cartwright are similar to those experienced across Newfoundland and
Labrador. Improved access to employment, education, and healthcare are three
primary causes of outmigration of many rural communities. In addition to a declining
population, Cartwright's population has also aged since 2001 . The median age in
Cartwright increased from 36.3 years of age in 2001 to 50.8 years of age in 2021.9
Over 85% of the population of Cartwright identify as Indigenous, with 71 % of the
population identifying as Metis, and 14% of the population identifying as lnuk
(Inuit). 10
700
--- ------
600
----- ------
500
----- -----------.
400
300
200
100
0
1991
1996
2001
2006
2011
2016
2021
Figure 2: Town of Cartwright Population, 1991 to 2021 (Source: Statistics Canada)
In addition to the number of people living in Cartwright decreasing, the number of
total dwellings has also decreased. In 2006, there were 251 private dwellings in
Cartwright, but this has decreased to 205 today. 11 As of 2016 (2021 data not yet
available), 82% of Cartwrights dwellings were occupied by usual residents-that is,
they are considered permanent residents of Cartwright. 12
Town of Cartwright Municipal Plan 2024
8
2.3. The Economy
The economy of Cartwright has historically and continues to be based around
access to the shoreline and ocean. The fishery in the town, operated by the
Labrador Fishermen's Union Shrimp Company, directly and indirectly employs
upwards of 150 people. The fishery has operated in Cartwright since 1982 with its
primary focus on crab production, though it processes a variety of aquatic species.
In addition to the fishery, major employers in the town include the Henry Gordon
Academy, retail and personal service shops, and tourism and accommodations. In
total, there are approximately 1 O local businesses in Cartwright.
According to the 2016 Statistics Canada Census, the employment rate (expressed
as the total number of employed people as a proportion of the total labour force) in
Cartwright is 31.9%, compared to 56.9% in Labrador. Conversely, the
unemployment rate (expressed as the total number of unemployed people as a
proportion of the people within the labour force) is 47.8%-more than three times
Labrador's unemployment rate of 15.0%.13
Despite limited economic growth over the past several decades, potential in the oil
and gas sector poses a significant opportunity for the Town of Cartwright and
Labrador. 14 One of the five major offshore oil and gas fields off the coast of
Labrador, the Hawkes Basin, lies just offshore of Cartwright-positioning the town
to capitalize on growth in this sector. Should exploration and extraction of the oil
fields in this area commence over the planning period, Cartwright is geographically
well-positioned to serve as a base of operations and supply for oil and gas
activities.
The 2009 construction of road connections to the rest of Labrador has also opened
additional opportunities for Cartwright's port. Goose Bay freezes up earlier than
Cartwright and is somewhat constrained by size limitations imposed by bridges
across the Churchill River; as the next closest major port, Cartwright was utilized by
Nalcor to offload components for the Muskrat Falls hydroelectric generation station
that were too large to pass under the Veterans Memorial Bridge on the Churchill
River.
Recent years have also seen the arrival of small adventure cruises in Cartwright.
With its rugged beauty and close proximity to the Mealy Mountains National Park
Reserve, Cartwright is well-positioned to continue to serve this industry. While there
are also opportunities for more traditional forms of tourism, the shortage of tourism
accommodations in the town can be challenging.
The Town is fortunate to have stable finances with no long-term debt.
Policy 2-1: Council shall support the development and growth of Cartwright as
a service hub for the energy sector.
Town of Cartwright Municipal Plan 2024
9
2.4. Land Uses
Residential development in Cartwright has primarily occurred along the shoreline
and in the areas immediately adjacent to the coast, with the majority of residential
development located on the northern half of the harbour. More recently, as the
availability of lots has decreased, infill residential development has occurred in
addition to development along major roadways in Cartwright. However, over the
planning period, there is limited potential for infill development within the built-up
areas of the town.
Topography and servicing requirements are limiting factors for residential
development in Cartwright. Challenging terrain and landscapes require significant
investment to make land ready for development, while water and sewer
requirements also create barriers to residential development.
Cartwright's primary commercial and industrial areas are located along the
coastline on the north side of the harbour. The Labrador Fishermen's Union Shrimp
Company, Canadian Coast Guard, post office, and convenience store are all
located in this area. However, Cartwright has traditionally maintained a healthy
mixing of residential and commercial uses throughout the Planning Area. Within the
residential areas of Cartwright, residential and commercial uses coexist and
contribute to the general character of the town.
Outside of the residential and commercial areas of Cartwright lie large swaths of
undeveloped natural lands. These areas are used by local residents for collecting
firewood and hunting, and in the winter these areas are an important part of the
transportation network. Snowmobile trails connect many communities in Labrador,
including Cartwright during the winter months, and are important links for
communities without road access.
2.5. Heritage Preservation
Within Cartwright, paleoeskino, maritime archaic, and European artifacts have all
been found, highlighting the significant history of the Planning Area. There are five
known archeological sites within the Town of Cartwright, and there are likely others
based on oral and written history. In Newfoundland and Labrador, the Province
regulates significant heritage and archeological resources through the Heritage
Resources Act, and municipalities are also enabled, under the Municipalities Act,
1999, to recognize and protect heritage properties. A property protected under the
Municipalities Act, 1999, cannot be demolished or have its exterior modified without
permission from Town Council.
Town of Cartwright Municipal Plan 2024
10
3.
Community Vision and Plan Objectives
3.1. Community Vision
A community vision establishes the high-level ambitions and aspirations for the
Town of Cartwright. The community vision will not only guide the policies in this
Plan and the regulations of the Development Regulations, but it will act as a
benchmark for which to measure the success of the Town over the next decade.
Council adopts the following vision to guide the Town of Cartwright:
The Town of Cartwright is a safe, caring community that prospers socially
and culturally by valuing its history, culture, natural environment, and
access to the coast. The Town will encourage and initiate innovative and
positive changes that are economically, environmentally, and socially
sustainable.
3.2. Plan Objectives
If the community vision establishes the ambitions and aspirations for the Town, the
Plan objectives represent tangible and specific outcomes the Town wants to
achieve over the planning period (2024-2034). This Plan establishes eight objectives
that will be supported by clear, strong planning policies in this Municipal Plan and
the regulations within the Development Regulations.
1) Support the orderly growth and development within Cartwright's Planning
Area
2) Support the long-term housing needs of current and future residents.
3) Enable and support commercial and industrial development.
4) Protect and enhance environmentally sensitive and significant areas.
5) Protect historically significant and potentially significant areas.
6) Support a safe and reliable transportation network within the Planning Area.
7) Support the provision and efficient use of municipal services.
8) Support and enable current and future artistic, cultural, and recreational
facilities.
Town of Cartwright Municipal Plan 2024
11
4.
General Land Use Policies
Unless otherwise stated, the policies in this Chapter apply throughout the entire
Cartwright Planning Area.
4.1. Directing and Managing Growth
This Municipal Plan and accompanying Development Regulations will direct the
management and development of land within the Cartwright Planning Area over
the next decade. Within the Planning Area, undeveloped land capable of
supporting new growth is limited; especially because the cost of extending
municipal services and the cost-prohibitive nature of clearing and grading land.
This Plan seeks to direct new growth to areas that are already serviced to
decrease the overall financial burden on the Town and its residents.
To manage development of land within the Town, Council will regulate the size,
location, and number of buildings on a lot while also regulating processes
regarding the subdivision of land. Subdivision involves the process of land
division or land consolidation-a process which includes development in many
instances. Council, through this Municipal Plan and the Development
Regulations, also can influence the appearance and maintenance of buildings
and structures within the Planning Area.
Policy 4-1: Council shall, through the policies of this Plan and through the
Development Regulations, encourage and prioritize new development in
areas where development and infrastructure exist in the Town.
Policy 4-2: Council shall, through the Development Regulations, regulate
the size, location, lot frontage requirements, and number of buildings,
including accessory buildings and uses, on a lot to carry out the intent of
each specific land use zone and to support the overall growth and
development of Cartwright.
Policy 4-3: Council shall, through the Development Regulations, regulate
the provision of buffers to reduce land use conflicts between incompatible
uses or to regulate uses that may have a visual impact in the town.
Policy 4-4: Council shall, through the Development Regulations, regulate
the keeping of livestock and structures associated with the keeping of
livestock to protect the health and wellbeing of the community, the
environment, and of the livestock itself. Council shall only permit agricultural
uses outside of the serviced areas of the town.
Town of Cartwright Municipal Plan 2024
12
Policy 4-5: Council shall, through the Development Regulations, establish
requirements to ensure the appropriate maintenance of properties in the
Planning Area, including, but not limited to, provisions for landscaping,
screening, and outdoor storage and display.
Policy 4-6: Council shall, through the Development Regulations, establish
requirements for the excavation, filling in, or reclamation of land.
Policy 4-7: Council shall, through the Development Regulations, establish
requirements for mineral workings and development, including the referral of
approved developments where the extraction of quarry material is occurring
or may be expected to occur to the Quarry Materials Section; Mineral Lands
Division; Department of Industry, Energy and Technology.
Policy 4-8: Council shall, through the Development Regulations, regulate
uses deemed dangerous or offensive to protect the health and safety of
residents in the Planning Area.
Policy 4-9: Council shall, through the Development Regulations, control,
regulate, and establish provisions for the subdivision of land within the
Planning Area and shall require any subdivider of land to obtain a permit
before proceeding. Council shall only permit the subdivision of land in
accordance with the requirements of the Development Regulations,
including but not limited to the need for a Development Agreement, the
provision of Services, Payment of Service Levies and Other Charges, and
the satisfaction of Permit Considerations as laid out in the Development
Regulations.
Policy 4-10: Council shall, through the Development Regulations, regulate
the size of lots that are created in each land use zone through subdivision,
and shall ensure that any subdivision conforms with the lot requirements
contained in the Development Regulations.
Policy 4-11: Council shall, through the Development Regulations, regulate
and permit residential development on existing undersized lots in the
Planning Area.
Policy 4-12: Council shall, through the Development Regulations, establish
locations and standards for the development of public and private roads,
central services, and other publicly owned infrastructure for subdivision
development.
Town of Cartwright Municipal Plan 2024
13
Policy 4-13: Council shall, through the Development Regulations, require a
maximum of 10% of land proposed for subdivision development be
dedicated to the Town as usable open space. Council may, in cases where
the Town determines that the land is of insufficient size, is inappropriate due
to its location, or for any other reason the Town find unacceptable, accept
in lieu of land a sum of money equal to the value of the land that would
otherwise be required and such monies shall be dedicated to the purchase
of land in other locations or to the improvement of existing public recreation
facilities.
Policy 4-14: Council shall work to ensure development does not disturb
survey control monuments in the Planning Area and shall contact the
Province's GIS and Mapping Division if works within the town's Municipal
Planning Area have the potential of disturbing an existing Control Survey
Marker.
Policy 4-15: Council shall, through the Development Regulations, allow for
the establishment of Building Lines and Setbacks, including establishing
building lines as a component of subdivision developments.
Policy 4-16: Council shall, through the Development Regulations, provide
for the consideration of developments that form part of a zero lot line
development.
Policy 4-17: Council shall, through the Development Regulations, allow for
the consideration of comprehensive development of a specified parcel(s) of
land where development requires a level of oversight that cannot be
achieved through the standard development and permitting process.
Policy 4-18: Council shall, though the Development Regulations, establish
requirements for the erection of fences in all zones.
Policy 4-19: Council shall adhere to the issuance of orders pursuant to
Section 102 of the Urban and Rural Planning Act, 2000.
Policy 4-20: Council shall, where designating employees to whom a power
is to be delegated under subsections 109(3) of the Act, make that
designation in writing.
Policy 4-21: Council shall prohibit general development, with the exclusion
of development, of or in support of, utilities as defined by the Public Utilities
Act, 1990, within transmission or distribution line right of ways or
easements.
Policy 4-22: Council shall inform NL Hydro of any green field or serviced
infill development prior to development permit issuance.
Town of Cartwright Municipal Plan 2024
14
Policy 4-23: Council shall inform NL Hydro and obtain approval from NL
Hydro prior to the approval from NL Hydro prior to the approval and
development of a public or private road underneath transmission lines.
4.2. Central Services
The Town of Cartwright has both a central water and central sewer system.
The Town's drinking water supply is derived from Burdett's Brook Pond;
however, the town has been under a long-term boil water advisory since 200615
due to several concerns created by the drinking water system and the water
quality. Cartwright experiences frequent power outages and this cannot be
corrected without an automatic back up power supply to the water treatment
building. Without a backup power supply, untreated water could flow to
residents in the event of a power outage. Additionally, organic material left in
Burdett's Brook Pond following the installation of the water supply system is
believed to have impacted the overall water quality.
The Town's municipal central sewer system services over 70% of the town's
households. This system consists of gravity mains but it does not include a
treatment facility, meaning untreated sewage is disposed of in the harbour
through two outfalls. For lots not served by municipal sewer, on-site systems
are required. New federal wastewater treatment and disposal guidelines mean
the long-term acceptability of such an approach is limited but implementing a
wastewater treatment system that meets such guidelines would come at a great
expense.
A long-standing challenge for the Town and Council has been the installation
and maintenance of municipal water and sewage disposal systems. Initial
infrastructure investment and long-term recapitalization of ageing infrastructure
are cost-prohibitive, emphasizing Council's current challenges with the existing
systems. Council supports efforts that maximize the use and efficiency of the
existing water and sewage disposal systems.
Policy 4-24: Council shall, through the Development Regulations,
encourage the efficient use of central services by permitting smaller lot sizes
and lot frontages in areas where central sewer, water, or both are present
subject to approval by the Engineer at the expense of the applicant.
Town of Cartwright Municipal Plan 2024
15
Policy 4-25: Council shall, through the Development Regulations, require
new development to connect to central sewer, water, or both, where such
services are available. Where services are not available, proposed
development must show, to the satisfaction of the appropriate provincial
departments and at the applicant's expense, the site has the capacity to
bear such services over the long term without adverse or off-site impacts.
Council may exempt structures in the Rural designation, lots currently not
serviced by the Town's central sewer and water systems, or industrial
developments from the requirement to connect to municipal services.
Policy 4-26: Council shall, through the Development Regulations, require
any new residential development or treatment system connecting to the
municipal water and sewer system obtain approval under Section 36 and 37
of the Water Resources Act, 2002.
Policy 4-27: Council shall, through the Development Regulations, set out
options for application of service levies where development is made
possible or where the density of potential development is increased, or
where the value of property is enhanced by the carrying out of public works
either on or off the site of the development.
Policy 4-28: Council shall, through the Development Regulations, require
the provision of central services via utility easements.
Policy 4-29: Council may, through the Development Regulations, establish
a provision for the dedication of land for public use for a development not
involving a subdivision where public works are required to accommodate
the proposed development.
Town of Cartwright Municipal Plan 2024
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4.3. Transportation
Although Cartwright is relatively isolated from other communities, there are
numerous transportation options for residents and community members to
move throughout the town, including automobile, snowmobile, on-foot as a
pedestrian, and by boat. Key to the transportation network is the public roads
that connect people to each other, to other communities, to their places of
employment, and to the services and amenities they need.
Policy 4-30: Council shall, through the Development Regulations, regulate
the location and standards of lot access and services streets so roads and
streets can accommodate emergency vehicles and expected traffic capacity
or flow, and to ensure pedestrian and vehicular safety.
Policy 4-31: Council may establish minimum standards for roadways,
including, but not limited to, roadway width, roadway grade, and the
provision of sidewalks.
Policy 4-32: Council shall, through the Development Regulations, prohibit
development on new private roads except on lands in the Rural Zone and
Watershed and Environmental Protection Zone.
Policy 4-33: Council shall, through the Development Regulations, prohibit
development or the use of a public right of way to private property where it
would block or prevent the use of traditional footpaths. Where development
is proposed adjacent to an existing trail, Council may require that access to
that trail is provided as a condition of development.
Policy 4-34: Council may, through the Development Regulations, require
new development to provide a separation buffer between a proposed
development and an existing trail or pathway.
Policy 4-35: Council shall inform the Labrador Affairs Secretariat should any
amendments to the Municipal Plan or proposed development result in
impacts to the existing trail system.
Town of Cartwright Municipal Plan 2024
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4.3.1.
Automobile Parking
Because of the general shortage of developable land within Cartwright, land
that is capable of development has been devoted to buildings and structures.
While this has created a situation where land efficiency is maximized, it has
also meant there is generally a shortage of automobile parking in Cartwright.
To ensure an adequate supply of automobile parking in Cartwright, Council
supports the development of minimum parking requirements for new
developments. As a minimum standard, developers can provide additional
parking spaces if their business plan and financial ability allow.
Policy 4-36: Council shall, through the Development Regulations, establish
minimum automobile parking requirements aimed at ensuring an adequate
number of parking spaces is provided per development, but to ensure an
oversupply of parking is not created.
Policy 4-37: Council may, through the Development Regulations, relieve an
applicant of the minimum parking requirements where, in Council's opinion,
strict application of the requirements is impractical or undesirable. Council
may require, as a condition of such permit, an applicant to pay a service
levy in lieu of the provisions of the parking area.
Policy 4-38: Council shall, through the Development Regulations, establish
design and site planning requirements for automobile parking spaces and
areas.
Town of Cartwright Municipal Plan 2024
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4.3.2.
Utilities and Communication Antennas
Public utilities, including phone and internet service, are important
components of a functioning municipality, and because of their importance,
they are required by all residents in Cartwright. Many of these utilities are
often located within the street right-of-way {telephone lines), while other
utilities may be located on their own lot {transformer stations). Because of
their importance, Council intends to exempt them from planning requirements
to ensure ease of access and implementation.
In 2020, the Town gained access to cellular phone service. Unlike public
utilities, radiocommunications facilities lie under the Federal Government's
jurisdiction as stipulated in the Radiocommunication Act. The Federal
Government has the sole authority for issuing licenses for these facilities.
While Council can elect to develop a public consultation process for the
implementational of new radiocommunications facilities, Council has chosen
to defer to Industry Canada's Default Public Consultation Process.
Policy 4-39: Council shall, through the Development Regulations, permit in
all zones linear utilities and associated operations facilities such as, but not
limited to, transformers and sewage lift stations. For greater clarity, facilities
not directly related to the immediate operation of the utility, such as offices
and maintenance depots, shall be required to locate in an appropriate zone
that permits these uses.
Policy 4-40: Council shall authorize the Canadian Radiocommunications
Information and Notification Service (GRINS) to conduct siting, review, and
public consultation processes for radiocommunications facilities in
accordance with Industry Canada standards.
Town of Cartwright Municipal Plan 2024
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4.3.3.
Advertising Signs
Advertising signage plays an important role in economic development efforts
in a community. Signage provides information to automobile drivers,
passengers, and pedestrians of the services available in a community and
can be vital in attracting patrons to a service. However, if left unfettered,
advertising signage can proliferate into "sign pollution" and impact the
amenity of the community.
Policy 4-41: Council shall, through the Development Regulations, regulate
the type, size, and location of on-site signs in Cartwright to balance the
aesthetic qualities of Cartwright with the need for businesses to advertise
their services. Development Regulations shall also provide for the removal,
maintenance, exemption, standards for non-conforming uses, and
prohibition of signs.
Policy 4-42: Council shall, through the Development Regulations, regulate
the size, location, and form of off-site business signs to provide an
organized and cohesive approach to off-site signs.
Policy 4-43: Council shall, through the Development Regulations, require
applications for signage along Provincial Route 516 or any other provincially
maintained road be referred to Service NL for approval.
Town of Cartwright Municipal Plan 2024
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4.5. Housing
Housing is a necessity of life. Every person who lives in Cartwright needs access
to housing that is affordable, in good condition, and appropriate for their life
stage.
Most of the housing in Cartwright is of the single-detached variety. As of the
2016 Census, over 89% of housing comes in the form of single-detached
dwellings, while semi-detached (3%) and row houses (8%) make up the
remaining housing stock. Most households are made up of either one person
(29%) or two people (53%), with the average household size being 2.3 people
per household, down from 2.5 in 2006. In addition to being dominated by
single-detached dwellings, housing in Cartwright is primarily owner-occupied
(71 %) while the remaining population (29%) rent their dwelling.16 Also cited in the
1994-2004 Municipal Plan, there is a distinct shortage of adequate rental
housing in Cartwright.
Because the housing stock is primarily one style (single-detached dwellings) and
with the size of households shrinking, a greater diversity of housing styles and
tenures may be needed in the future. Generally, trends in housing point towards
a preference for smaller dwellings. Council supports policies and regulations
that enable a variety of housing styles, forms, and tenures in Cartwright.
Policy 4-44: Council shall, through the policies of this Plan and through the
Development Regulations, enable diversity in the form, scale, and location of
housing that is permitted in the town.
Policy 4-45: Council shall, through the Development Regulations, permit
secondary dwellings in the Mixed Use Zone and Comprehensive
Development Zone to promote greater housing variety and density.
Policy 4-46: Council shall, through the Development Regulations, establish
development standards for secondary dwellings to limit their impact on the
character and amenity of the town.
4.5.1.
Home-based Businesses
Policy 4-47: Council shall, through the Development Regulations, permit
home-based businesses in land use zones that prioritize residential
development and shall establish criteria and regulations for home-based
businesses to ensure they fit into the character of residential
neighbourhoods.
Town of Cartwright Municipal Plan 2024
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4.6. Environment
The natural environment is integral to the identity and character of Cartwright.
Indigenous people and communities thrived on the land before the arrival of
Europeans, and, following their arrival, the landscape was a vital component in
the development of the town. Cartwright is also located in an extraordinarily rich
region which includes Sandwich Bay, the Mealy Mountains National Park
Reserve, and the Gannet Islands Ecological Reserve. These assets all contribute
to thriving natural environments and ecosystems, but they are also important in
attracting visitors to the region who come to take in the natural beauty of the
area. The Town has a role to play in environmental protection, and Council is
supportive of efforts to protect and enhance the natural environment.
4.6.1.
Wetlands, Watercourse Buffers, and Coastal Areas
Cartwright is functionally and symbolically connected to the water. The coast
and many lakes and watercourses connect people to the land. As such,
Council supports efforts to protect these natural assets through watercourse
buffers. Watercourse buffers limit development within a certain distance of
the watercourse to protect terrestrial and aquatic species from being
impacted by development while also helping to protect development from
hazards such as erosion and flooding.
Policy 4-48: Council shall, through the Development Regulations, establish
buffers that limit development adjacent to watercourses or wetlands. These
buffers are intended to protect terrestrial and aquatic species and their
habitat from destruction and fragmentation while also limiting development
in areas that could be hazardous to humans and their property. Proposed
development within such buffers shall be subject to referral and the approval
of the provincial Department of Environment and Climate Change and, if
aquatic habitat is affected, Fisheries and Oceans Canada.
Policy 4-49: Council may, through the Development Regulations, require
larger buffers in areas around watercourses where identified flood plains,
steep slopes, or unstable soil conditions are present. The high water mark is
considered to be the 1 : 100-year flood level.
Policy 4-50: Council shall require a coastal vulnerability assessment for any
development proposed at or below the present 2 metre contour with
respect to sea level rise and coastal flooding. Such assessment shall be
completed by a qualified professional and reviewed by Council prior to
development.
Policy 4-51 : Council may, through the Development Regulations, permit
wharves, slipways, and docks across the Planning Area to ensure traditional
fishing uses and access to the coast are maintained.
Town of Cartwright Municipal Plan 2024
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Policy 4-52: Council shall work with Government to ensure any infilling,
dredging, or other developments along the coastline or shore water zones is
conducted in accordance with the appropriate legislation and policies,
including Section 48 of the Water Resources Act, 2002.
Policy 4-53: Council shall, through the Development Regulations, establish
requirements for the planning, design, and construction of water crossings,
bridges, culverts, stream diversions and stormwater management devices.
Policy 4-54: Council shall, through the Development Regulations, require
land to be developed on the basis of zero net stormwater runoff.
Policy 4-55: Council shall, through the Development Regulations, establish
requirements for development in any body of water, including wetlands,
apply for and obtain a permit from the Provinces Water Resource
Management Division, under section 48 of the Water Resources Act, 2002.
Policy 4-56: Council shall work to ensure any development commencing
pursuant to a Permit issued under Section 48 of the Water Resources Act,
2002, conform to the requirements of the Environmental Control Water and
Sewage Regulations, 2003.
4.6.2.
Development of Steep Slopes
Policy 4-57: Council shall, through the Development Regulations, require
written approval from a qualified professional, at the cost of an applicant,
where development is proposed on a site where the slope of the land is
greater than 15 percent or which is potentially subject to flooding or any
other hazard, to ensure the development of the site can occur without
endangering the health and safety of any person or structure.
Policy 4-58: Council shall, through the Development Regulations, restrict
greenfield Residential and Commercial Development a distance of 30
metres from an oceanic shore line composed of unconsolidated material
forming coastal cliffs or unconsolidated sediment on bedrock.
4.6.3.
Bulk Fuel Storage
Policy 4-59: Council shall, through the Development Regulations, require all
fuel storage tanks with a capacity of 1 ,000 gallons or greater to be first
approved by the Department of Industry, Energy and Technology.
Town of Cartwright Municipal Plan 2024
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4.6.4.
Solid Waste Disposal
Solid waste in Cartwright is disposed of at the solid waste disposal site within
the town's boundary. While the Government of Newfoundland and Labrador
has intended to move to a regional model of solid waste disposal, the solid
waste disposal site in the Town of Cartwright still operates as the primary
disposal site. Because solid waste disposal sites have the potential to create
land use conflicts, Council shall establish a 1.6-kilometre buffer around any
existing or future solid waste disposal site. Proposed development within the
1.6-kilometre buffer shall require Council's approval before development.
Policy 4-60: Council shall, through the Development Regulations, establish
a 1.6-kilometre buffer around any existing or future solid waste disposal site,
as regulated under the Environmental Protection Act. Council shall prohibit
the development of residential uses within the 1.6-kilometre buffer.
Town of Cartwright Municipal Plan 2024
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4. 7. Arts, Culture, and Recreation
The cultural heritage of Cartwright is not only evident in the physical landscape
but it also manifests in people's livelihoods and the way in which they move
throughout the community. As the Town looks forward, it intends to support
artistic, cultural, and recreational buildings, landscapes, and endeavours that
continue to be present in Cartwright.
4. 7 .1.
Heritage Properties
Policy 4-61: Council may work to identify, document, and protect
significant heritage buildings, structures, landmarks, and landscapes within
Cartwright.
Policy 4-62: Council shall, through the Development Regulations, require
applications for development to be forwarded to the Provincial
Archaeological Office where archaeological resources are known to exist or
where they are likely to exist based on the location of historical evidence.
Policy 4-63: Council may, through the Development Regulations, require
development proposals for permitted or discretionary uses be forwarded to
the Provincial Archaeology Office for review to determine if an Historic
Resources Impact Assessment is required prior to development.
Policy 4-64: Council may, through the Development Regulations, require
any public works project or proposed development, which disturbs
undeveloped land, to be referred to the Provincial Archaeological Office for
review to determine if an Historic Resources Impact Assessment is required
prior to development.
Policy 4-65: Council may, through the Development Regulations, reduce
development requirements for registered heritage properties as an incentive
to register and invest in these properties.
Policy 4-66: Council shall, through the Development Regulations, establish
requirements for the consideration of alterations to Heritage properties.
Policy 4-67: Council shall require that prior to the moving, demolition, or
alteration of a provincially registered heritage property any such alteration be
referred to the minister responsible for the Historic Resources Act prior to
undertaking any work.
Town of Cartwright Municipal Plan 2024
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4. 7.2.
Arts and Cultural Uses
Within the Cartwright area, there is a wide array of 'traditional' craft skills.
These include activities such as canoe and boat making, wood carving, grass
work, barrel making, snowshoe making, rug hooking, beadwork, leather
work, among others. These activities not only reinforce the diverse culture of
Cartwright, but they also provide opportunities for employment and economic
development. Council is supportive of permitting arts and cultural uses as
home-based businesses in Cartwright.
Policy 4-68: Council shall, through the Development Regulations, permit
the teaching of students in activities such as dance and music, art gallery
sales, and craft workshops as home-based businesses.
Policy 4-69: Council shall, through the Development Regulations, permit
cultural and civic uses such as, but not limited to, theatres and museums, in
zones that prioritize institutional uses.
4. 7.3.
Cemeteries
Within the Town of Cartwright, there are cemeteries and other significant
places where people have been buried and laid to rest. These are important
community spaces that help to tell the story of Cartwright and the
community. However, due to the limited availability of developable land and
limited extent of municipal services, new cemeteries are not appropriate for
the core residential and commercial areas of the town.
Policy 4-70: Council shall, through the Development Regulations, permit
existing cemeteries in the Mixed Use Zone and the Commercial and Light
Industrial Zone, but they shall not be permitted to expand further. New
cemeteries shall be permitted in the Rural Zone and the Heritage Protection
Zone.
Town of Cartwright Municipal Plan 2024
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4. 7 .4.
Recreation and Institutional Uses
Cartwright has a strong foundation of recreation and institutional uses that
play significant roles in the day-to-day lives of community members. The
Henry Gordon Academy, which is also home to the community library, is
located on the north side of the harbour. Under the jurisdiction of the
Newfoundland and Labrador English School District, the school has an
enrollment of approximately 70 children from kindergarten to Level 12. The
gymnasium and playground within the school are two of the primary
recreational faculties in Cartwright and are owned and operated by the Town.
There are also two churches within Cartwright: St Peter's Anglican Church
and Evangel Temple Pentecostal Church. These institutions, along with
others including the South Labrador Family Centres are vital to the social and
cultural fabric of the community.
Policy 4-71: Council shall, through the Development Regulations, permit
institutional uses including, but not limited to, government facilities, child
care centres, and cultural institutions throughout the Planning Area in the
serviced and developed areas of Cartwright.
Policy 4-72: Council shall, through the Development Regulations, permit
conservation uses and non-commercial parks and playground uses in all
zones.
Town of Cartwright Municipal Plan 2024
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5.
Town Structure
5.1 . Land Use Designations
The future growth and development in Cartwright's Planning Area will be
facilitated through land use designations and land use zones. Land use
designations, which are shown on the Future Land Use Map (Schedule 'B'),
broadly map out how development will occur in specific areas of Cartwright. For
example, areas within the Rural Land Use Designation are primarily intended for
rural development, such as agricultural or forestry land uses.
Land use designations are supported by land use zones within the Development
Regulations, which specify the types of uses that are permitted in each land use
zone. Every piece of land within the Planning Area is covered by a land use
designation under this Plan and is also covered by a land use zone under the
Development Regulations.
Policy 5-1: Council shall, within this Plan and on the Future Land Use Map,
establish a series of land use designations to guide future growth in
Cartwright.
Policy 5-2: Council shall, through the Development Regulations, establish a
Use Class Table to outline the division of general uses into class types with
examples.
Policy 5-3: Council shall, through the Development Regulations, establish
provisions for the interpretation of Zone Boundaries.
Policy 5-4: Council shall consider proposals to rezone lands in any
designation to any other zone permitted in that designation. Council shall
not approve such a rezoning unless Council is satisfied:
a) the proposed change is not prohibited by any other policies of
this Municipal Plan;
b) the purpose of the proposed zone, as described in the
respective policy creating that zone, is consistent with the
location and characteristic of the land and with the proposed
use of the lands; and
c) the proposal meets the general criteria for amending the
Development Regulations, set out in Policy 6-27 of this
Municipal Plan.
Town of Cartwright Municipal Plan 2024
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5.2. Mixed Use
Areas designated as Mixed Use are intended to accommodate a mixture of
residential, commercial, institutional and public uses. Historically, Cartwright has
accommodated a mixture of land uses which have not created significant land
use conflicts and Council intends to continue to facilitate and permit this mixture
of land uses, all the while looking to ensure amenity and safety between them.
The Mixed Use Designation has been applied to areas that are already primarily
residential in nature (North side of the harbour), but it has also been applied to
areas that may be suitable for residential or commercial development-
especially those areas along the main roads in Cartwright and those that can be
easily serviced.
Policy 5-5: Council shall, on Schedule '8
1
, the Future Land Use Map,
designate as Mixed Use lands in serviced and unserviced areas intended to
give priority to residential development while also supporting a mixture of
commercial, institutional, and public uses.
Policy 5-6: Council shall, through the Development Regulations, permit the
Mixed Use Zone in the Mixed Use Designation.
5.2.1.
Mixed Use Zone
Policy 5-7: Council shall, through the Development Regulations, establish
the Mixed Use Zone, intended to permit lower density residential
development as well as uses permitted in all zones on serviced and
unserviced lots. Permitted uses include child care, existing cemetery,
conservation, double dwellings, home-based businesses, mobile homes,
recreational open space uses, secondary dwellings, single dwellings, and
utilities. Higher density forms of residential development, including multi-unit
dwellings, lodging establishments, small options homes and special care
facilities as well as seasonal residences may be permitted as a discretionary
use. Zone standards shall provide flexibility for the location of dwellings to
promote infill development, particularly on serviced lots.
Town of Cartwright Municipal Plan 2024
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Policy 5-8: Council may, through the Development Regulations, permit a
range of commercial, institutional, and public uses as discretionary uses in
the Mixed Use Zone. Discretionary uses include accommodations, antenna,
automotive sales, convenience stores, cultural and civic uses, education -
limited to public schools, emergency services, dine-in restaurants, funeral
homes, general assembly uses, offices, indoor markets, media
communications uses, medical and professional uses, mineral exploration
(development), outdoor markets, personal services, places of worship,
shops, take-out service, taverns, and theatres. Council shall be satisfied the
development will not adversely impact the residential character of the area,
that there is an adequate provision of parking, and that buffering is provided
if necessary. Council may establish additional standards for commercial,
institutional, and public uses, including, but not limited to, convenience
stores and automobile sales, to ensure their use can be appropriately
accommodated in residential areas.
Policy 5-9: Council shall, through the Development Regulations, limit one
main building per lot in the Mixed Use Zone and shall require buildings to
have their primary entrance oriented towards the street on which they front.
Policy 5-10: Council shall, through the Development Regulations, require
site planning and nuisance mitigation where a use proposed adjacent to an
existing residential use in the Mixed Use Zone could create adverse effects
on the residential use.
Town of Cartwright Municipal Plan 2024
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5.3. Commercial and Light Industrial
While most of the commercial activity in Cartwright is interspersed with
residential uses, there are areas where commercial and light industrial activity
have clustered or have been strategically located, especially as it relates to
access to the shoreline. The northern coastline of the harbour includes the
Labrador Shrimp Company-a significant employer and use in the Town.
The Commercial and Light Industrial Designation intends to accommodate
commercial and light industrial uses that rely on direct access to the harbour or
other significant industrial uses such as the commercial airstrip.
Policy 5-11: Council shall, on Schedule 'B', the Future Land Use Map,
designate as Commercial and Light Industrial land intended to
accommodate commercial and light industrial uses, including those that
need to be located along the shoreline. This designation shall also
accommodate the commercial airstrip located within the Planning Area.
Policy 5-12: Council shall, through the Development Regulations, permit
the Commercial and Light Industrial Zone in the Commercial and Light
Industrial Designation.
5.3.1.
Commercial and Light Industrial Zone
Policy 5-13: Council shall, through the Development Regulations, establish
the Commercial and Light Industrial Zone, intended to permit a range of
commercial and light industrial uses. Permitted uses include aquaculture,
cemetery - existing, conservation uses, dine-in restaurants, indoor
assembly uses, light industry, marine transportation, offices, outdoor
markets, recreational open space uses, service stations, shops, and utilities.
More intensive uses including antenna general industrial, general
transportation, media communications, mineral exploration, outdoor
assembly, take-out services and taverns, may be permitted as a
discretionary use in the Commercial and Light Industrial Zone.
Policy 5-14: Council shall, through the Development Regulations, require
site planning and nuisance mitigation where a use proposed adjacent to an
existing residential use could create adverse effects on said residential uses.
Policy 5-15: Council shall, through the Development Regulations, establish
additional siting provisions for service stations.
Town of Cartwright Municipal Plan 2024
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Policy 5-16: Council shall, through the Development Regulations, require all
applications for development within the Commercial and Light Industrial
Zone, except for minor alterations that do not result in the expansion or
reconfiguration of building's footprint, be referred to the Arts and Heritage
Divisions, Department of Tourism, Culture, Arts and Recreation for review
and consideration under the Heritage Resources Act.
Town of Cartwright Municipal Plan 2024
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5.4. Rural
The developed areas of Cartwright are surrounded by significant natural areas
that provide natural resources for the town. These rural lands provide a source
of aggregate for roads within Cartwright but also hold potential for forestry,
mining, and agricultural uses. In addition to the resources they provide, these
lands play an important role in the transportation network for residential and
community members-especially during the winter months. These areas
facilitate movement by snowmobile for inter- and intra-municipal transportation.
As these lands are outside of the serviced areas of the town, Council is not
supportive of permitting intensive uses in these areas without the further
expansion of municipal services.
This area within the town is also home to Cartwright's solid waste disposal site.
A new disposal site was due to be developed in 2020, and initial discussions
suggested the new site would be located near Port Hope Simpson; however,
the feasibility of such an approach was deemed unrealistic and since that time,
no future discussions have been held. Cartwright's solid waste disposal site
continues to function.
Policy 5-17: Council shall, on Schedule 'B', the Future Land Use Map,
designate as Rural land intended to accommodate a mixture of rural land
uses, while also accommodating appropriate industrial and residential uses
that may not be compatible with the developed areas of Cartwright.
Policy 5-18: Council shall, through the Development Regulations, permit
the Rural Zone in the Rural Designation.
5.4.1.
Rural Zone
Policy 5-19: Council shall, through the Development Regulations, establish
the Rural Zone, intended to permit a range of rural land uses, including
agricultural, agriculture related uses, cemetery - existing, conservation uses,
forestry, recreational open space uses, and utilities. Council shall permit
more intensive industrial and residential uses, including animal facilities,
antennas, aquaculture, cemetery, general industrial, media communications,
mineral exploration (development), mineral working, mobile homes, outdoor
assembly, outdoor market, recreational open space, salvage yards, single
dwellings, solar collector systems, and solid waste disposal as
discretionary uses in the Rural Zone. Zone standards shall ensure lots
created in the Rural Zone are significantly large enough to accommodate
permitted and discretionary uses without impacting the amenity of the
developed areas of Cartwright.
Town of Cartwright Municipal Plan 2024
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Policy 5-20: Council may, through the Development Regulations, permit
mobile homes in the Rural Zone as a discretionary use. Council shall
regulate the orientation, siting, and appearance of mobile homes to ensure
they fit into the general character of the town.
Policy 5-21: Council shall, through the Development Regulations, establish
requirements for the development of campgrounds to minimize potential
impacts on the town and its services.
Policy 5-22: Council shall, through the Development Regulations, require
mineral working uses to be constructed, operated, and rehabilitated in a
manner that will minimize impacts on surrounding land uses, the
environment, and the overall amenity in Cartwright.
Policy 5-23: Council may, through the Development Regulations, permit
general industrial uses in the Rural Zone when the general industrial use is
directly related to the operation of an approved mineral working use or
forestry use. Council shall be satisfied that any general industrial use will not
negatively impact any adjacent residential areas or negatively impact the
Town's municipal water supply system.
Policy 5-24: Council shall, through the Development Regulations, require all
applications for agricultural development be referred to the Department of
Fisheries, Forestry and Agriculture for review.
Policy 5-25: Council shall, through the Development Regulations, require a
site evaluation to be carried out with the respect to the preservation of on-
site historic resources and development plans shall be forwarded to the
Provincial Archaeology Office for review to determine if an Historic
Resources Impact Assessment is required
Policy 5-26: Council may, through the Development Regulations, permit
solid waste disposal uses in the Rural Zone. Council may permit the existing
solid waste disposal site to be expanded or the creation of a new solid
waste disposal site provided all solid waste disposal and sanitation
regulations, and all other municipal, provincial, and federal regulations, are
met. Council may require additional provisions including, but not limited to,
buffers, fences, landscaping, and rodent control to adequately manage any
potential land use conflicts created by solid waste disposal sites.
Town of Cartwright Municipal Plan 2024
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5.5. Heritage Protection
Cartwright has a significant history, imprinted on the town through various
natural and cultural resources. While there are known cultural resources that
exist in Cartwright, there are both historic and pre-historic assets that likely still
exist that have not been found. These assets are not only important to the
people and the Town, but they help to tell the story of Cartwright and how the
Town and people have been shaped throughout its history.
Council, through the Heritage Protection Designation, intends to protect
significant cultural and natural resources in Cartwright by limiting the types of
development and requiring proper site evaluation for discretionary uses. This
Designation has been applied to areas of the shoreline of the harbour, and it
also includes Cartwright Air Statio~, Flagstaff Hill, and Blackhead Hill.
Policy 5-27: Council shall, on Schedule 'B', the Future Land Use Map,
designate as Heritage Protection land intended to safeguard existing and
potential natural and cultural heritage resources including areas of the
shoreline, Cartwright Air Station, Flagstaff Hill, and Blackhead Hill.
Policy 5-28: Council shall, through the Development Regulations, permit
the Heritage Protection Zone in the Heritage Designation.
Policy 5-29: Council shall, through the Development Regulations, require
proposals for development to the decommissioned US military site, known
as the Cartwright Air Station, be referred to the Environmental Assessment
Division of the Department of Environment and Climate Change and the
Provincial Archaeology Office for review.
5.5.1.
Heritage Protection Zone
Policy 5-30: Council shall, through the Development Regulations, establish
the Heritage Protection Zone, intended to limit development to uses that
promote the conservation of natural and cultural heritage resources.
Permitted uses include recreational open space and conservation uses.
Policy 5-31: Council may, through the Development Regulations, permit,
as discretionary uses, industrial, public, and rural uses in the Heritage
Protection Zone. Discretionary uses include agricultural uses, antennas,
cemeteries, light industrial, marine transportation, and utilities. Discretionary
uses shall require a site evaluation to be carried out with the respect to the
preservation of on-site historic resources and development plans shall be
forwarded to the Provincial Archaeology Office for review to determine if an
Historic Resources Impact Assessment is required.
Town of Cartwright Municipal Plan 2024
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5.6. Watershed and Environmental Protection
Cartwright's drinking water is accessed from Burdett's Brook Pond, a
provincially-protected watershed. Despite the long-term and ongoing boil water
advisory in the town, it is important that Burdett's Brook Pond remains a viable
source of drinking water. To ensure such an outcome, the area designated by
the Province as a protected watershed will be designated under the Watershed
and Environmental Protection Designation to strictly control development in this
area.
The northern coastline of the Planning Area is also within the Mealy Mountain
caribou range-a species that is designated as Threatened under the
Newfoundland and Labrador Endangered Species Act. Protecting this species
and the other flora and fauna that thrive in these areas is important as
Cartwright plans for the next 10 years and beyond and, therefore, a one-
kilometre area along the northern boundary of the Planning Area has also been
included within the Watershed and Environmental Protection Designation.
Policy 5-32: Council shall, on Schedule 'B', the Future Land Use Map,
designate as Watershed and Environmental Protection land intended to
protect the recharge area of the Town's drinking water supply and protect
ecologically significant areas.
Policy 5-33: Council shall, through the Development Regulations, permit
the Watershed and Environmental Protection Zone in the Watershed and
Environmental Protection Designation.
5.6.1.
Watershed and Environmental Protection Zone
Policy 5-34: Council shall, through the Development Regulations, establish
the Watershed and Environmental Protection Zone, intended to safeguard
the ecological integrity of land and to limit human development from
occurring in areas of the town and Planning Area. Permitted uses in the
Watershed and Environmental Protection Zone shall be limited to
conservation uses and recreational open space - hiking trails.
Policy 5-35: Council may, through the Development Regulations, permit as
discretionary uses antennas, forestry uses, and utilities in the Watershed
and Environmental Protection Zone. Forestry uses shall only be considered
if approved by the Department of Environment and Climate Change Water
Resources Division.
Town of Cartwright Municipal Plan 2024
36
Policy 5-36: Notwithstanding other policies of this Plan that limit the land
use zones that are permitted within each land use designation, Council may
amend the boundaries of the Watershed and Environmental Protection Zone
on the zoning map of the Development Regulations to increase the total
amount of land protected under this land use zone or to adjust the
boundaries to be consistent with updated or new source water protection
plans.
Policy 5-37: Council shall, through the Development Regulations, limit the
allowance of permanent structures to those owned or installed by the Town
and intended for the preservation of the natural environment, scientific
research, or the operation of the municipal water supply.
Policy 5-38: Council shall, through the Development Regulations, require
applications for development adjacent to or within the Burdett's Pond
Protected Public Water Supply Area, to be referred to the Provinces Water
Resource Management Division regarding approval and permitting under
Section 39 of the Water Resources Act, 2002.
Policy 5-39: Council shall, through the Development Regulations, require
that work adjacent to or within Burdett's Pond Protected Public Water
Supply Area is in accordance and compliance with the Provinces Water
Resource Management Division's (WRMD} policy for Land and Water
Related Developments in Protected Public Water Supply Areas. Any
development in the Municipal Planning Area that overlaps the Protected
Public Water Supply Area cannot be less restrictive than the Provinces
WRMD Policy Directive for Land and Water Developments in Protected
Public Water Supply Areas.
Town of Cartwright Municipal Plan 2024
37
5.7. Comprehensive Development
Despite the limited potential for residential development in Cartwright, there
exists an area that may be suitable for subdivision development. In 2021, the
Town undertook service upgrades along Main Road. The east side of Main
Road could facilitate additional residential growth. However, before such
development occurs, Council shall require a Comprehensive Development Plan
to be completed that shows the development can be adequately serviced and
that road access is assured.
Policy 5-40: Council shall, on Schedule 'B', the Future Land Use Map,
designate as Comprehensive Development land intended for future
residential development but requiring study before such development
occurs.
Policy 5-41: Council shall, through the Development Regulations, permit
the Comprehensive Development Zone in the Comprehensive Development
Designation.
5. 7.1.
Comprehensive Development Zone
Policy 5-42: Council shall, through the Development Regulations, establish
the Comprehensive Development Zone, intended to accommodate future
residential development. Permitted uses include existing uses and
conservation uses. Residential and commercial uses shall be permitted as
discretionary uses in the Comprehensive Development Zone and shall only
be permitted when a Comprehensive Development Plan has been adopted
by Council. Discretionary uses include child care, double dwellings, home-
based businesses, mineral exploration, mobile homes, recreational open
space, secondary dwellings, single dwellings, special care facilities, and
utilities. Zone standards shall provide flexibility for the location of dwellings to
promote infill development, particularly on serviced lots.
Policy 5-43: Council shall, through the Development Regulations, require
any Comprehensive Development Plan to be completed at the applicant's
cost and to show a detailed plan, to the satisfaction of Council, including,
but not limited to, land use, water and sewer servicing, parking, site access,
automobile movement, entrance orientation, and landscaping.
Policy 5-44: Council shall, through the Development Regulations, require
development applications in the Comprehensive Development Zone to be
forwarded to the Provincial Archaeology Office for review to determine if an
Historic Resources Impact Assessment is required.
Town of Cartwright Municipal Plan 2024
38
6.
Implementation
6.1. Context
This Municipal Plan is a policy document that sets out the vision, goals, and
policies for development and land use in the Town of Cartwright. This Plan and
its associated Regulations are enabled by and are consistent with the Urban
and Rural Planning Act, 2000.
Policy 6-1: Policy statements of Council shall be denoted in this Plan with
the text "Policy #-#", with the number signs (hash) replaced by the
appropriate policy number.
Policy 6-2: Written content of this Municipal Plan not contained within a
Policy statement of Council or within one of the Schedules shall be
considered preamble. Preamble may be considered to interpret the intent of
Policy statements of Council, but do not form a part of the Policy
statements.
6.2. Development Control
This Municipal Plan is primarily implemented through the Development
Regulations which is administered by a member (or members) of staff who has
been appointed by Council.
Policy 6-3: Council shall adopt Land Use Zoning, Subdivision, & Advertising
Regulations ("Development Regulations") consistent with the intent of this
Plan.
Policy 6-4: Council shall, through the Development Regulations, implement
Land Use Zoning consistent with the Land Use Designations and Policies
established under the Municipal Plan.
Policy 6-5: Council shall appoint a member or members of staff who will be
responsible for administering the Development Regulations, including
issuing, refusing, and revoking development permits.
Policy 6-6: Council shall, through the Development Regulations, establish
'Permitted' and 'Discretionary' uses for land use zones.
Policy 6-7: Council may, through the Development Regulations, establish
conditions, including performance standards, to be met by a development
before a development permit may be issued.
Town of Cartwright Municipal Plan 2024
39
Policy 6-8: Council shall, through the Development Regulations, establish
provisions for the consideration of variances where a proposed
development does not strictly comply with development standards set out
in the Development Regulations.
Policy 6-9: Council shall, through the Development Regulations, establish a
requirement for Public Notice of Applications prior to rendering a decision
on an application for a permit when considering a change in non-
conforming use, a permit when the development proposed is listed as a
discretionary use in the use zones, or a variance.
Policy 6-10: Council shall, when considering an application to carry out
development, take into account the policies expressed in the Municipal Plan
and any further scheme, plan or Regulations pursuant thereto, and shall
assess the general appearance of the development of the area, the amenity
of the surroundings, availability of utilities, public safety and convenience,
and any other considerations which are, in its opinion, material, and
notwithstanding the conformity of the application with the requirements of
these Regulations, Council may, in its discretion, and as a result of its
consideration of the matters set out in the Development Regulations,
conditionally approve or refuse the application.
Policy 6-11 : In matters of enforcement Council shall make and adhere to
orders pursuant to Section 102 of the Urban and Rural Planning Act, 2000.
Policy 6-12: Council shall through the Development Regulations provide for
the restoration of any building or structure to a safe condition.
Policy 6-13: Council shall, through the Development Regulations, establish
Rules and Procedures for development appeals.
Town of Cartwright Municipal Plan 2024
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6.3. Development Permits
Development in Cartwright is controlled through the issuance of development
permits. Development permitting is a process that ensures new development
meets the intent of this Plan and of the regulations within the Development
Regulations.
Policy 6-14: Council shall, as permitted under Section 35 (1) (e) of the
Urban and Rural Planning Act, 2000, require a development permit to be
acquired for all development in the Planning Area, except those specified in
the Development Regulations as not requiring a development permit.
Policy 6-15: Council shall, through the Development Regulations, establish
application requirements for development permits.
Policy 6-16: Council shall, through the Development Regulations, establish
requirements for the Right of Entry relative to a submitted application for
development or when development is occurring without the benefit of the
required permits and approvals.
Policy 6-17: Council may, through the Development Regulations, issue
development permits for temporary uses, subject to specific requirements
established in the Development Regulations.
6.4. Non-conforming Uses
Inevitably, a change in policy and regulations when a new Municipal Plan and
Development Regulations come into effect will create a situation where some
legally existing uses or structures are no longer permitted in the new planning
documents. Under the Act, there are provisions that protect these "non-
conforming" uses to ensure they can continue to operate.
Policy 6-18: Council shall, through the Development Regulations, regulate
non-conforming uses in accordance with Section 108 the Urban and Rural
Planning Act, 2000.
Policy 6-19: Council shall, through the Development Regulations, establish
criteria with respect to existing structures and uses and non-conformity.
Policy 6-20: Council shall, through the Development Regulations, extend to
three years the period in which a use may cease to exist before it must
conform to the requirements of the planning documents in effect.
Policy 6-21: Council shall, through the Development Regulations, establish
requirements for non-conformance with standards relative to expansion.
Town of Cartwright Municipal Plan 2024
41
6.5. Development Agreements
When large developments are undertaken within a municipality-especially with
respect to subdivision development-there are tools available to municipalities
to ensure the work that is proposed meets specific standards, and adequate
funding is available to complete the proposal. Council may use these
'development agreements' when subdivision processes are proposed in the
Town.
Policy 6-22: Council may, through the Development Regulations, enter into
a development agreement involving the subdivision or consolidation of land
to establish the financing and development of all services including, but not
limited to, roads, water, and sewer which shall be provided at the cost of
the developer.
Policy 6-23: Council may, when necessary, require permits for
development to be released in a phased manner in compliance with
applicable development agreements and/or performance standards applied
to any approval.
6.6. Municipal Plan Amendments
As circumstances and conditions change in Cartwright, this Plan may need to
be amended to ensure the town and the community can continue to evolve and
change.
Policy 6-24: Council shall require an amendment to this Plan if:
(a) any policy intent is to be changed;
(b) an amendment to the Development Regulations would conflict
with any portion of the Municipal Plan; or
(c) the boundaries of a Planning Area or Designation are changed.
Policy 6-25: Council may conduct a brief 'housekeeping' review of this
Plan and accompanying Development Regulations one to two years after
implementation to correct any drafting errors and to update any necessary
terminology.
Policy 6-26: Council may conduct a full review of this Plan and
accompanying Development Regulations, within five years of
implementation to ensure the documents continue to reflect the trends and
outlook for the future of Cartwright.
Town of Cartwright Municipal Plan 2024
42
6.7. Amending the Development Regulations
Amending the Development Regulations may be required in conjunction with an
amendment to the Municipal Plan or may be a stand-alone amendment to the
Development Regulations. Amendments to the Development Regulations may
come in the form of a text change or as a zoning map change.
Policy 6-27: Council shall not amend the Development Regulations unless
Council is satisfied the proposal:
{a) is consistent with the intent of this Municipal Plan;
{b) does not conflict with any Municipal or Provincial programs or
regulations in effect in Cartwright;
(c) is not premature or inappropriate due to:
i.
the ability of the Town to absorb public costs related to the
proposal;
ii.
impacts on existing drinking water supplies, both private and
public;
iii.
the adequacy of central water and sewage services or, where
such services are not available, the suitability of the site to
accommodate on-site water and sewage services;
iv.
the creation of excessive traffic hazards or congestion on road,
cycling, and pedestrian networks within, adjacent to, or leading
to the proposal;
v.
the adequacy of fire protection services and equipment;
vi.
the adequacy and proximity of schools and other community
facilitates;
vii.
the creation of a new, or worsening of a known, pollution
problem in the area, including, but not limited to, soil erosion
and siltation of watercourses;
viii.
the potential to create flooding or serious drainage issues,
including within the proposal site and in nearby areas;
ix.
impacts on sensitive environments;
x.
impacts on known habitat for species at risk;
Town of Cartwright Municipal Plan 2024
43
xi.
the suitability of the site in terms of grades, soil and geological
conditions, the location of watercourses and wetlands, and
proximity to utility rights-of-way; and
xii.
negative impacts on the viability of existing businesses in the
surrounding community, including, but not limited to, the risk of
land use conflicts that could place limits on existing operation
procedures.
Policy 6-16: Council may, in addition to any other required information,
require any or all the following information, prepared by an appropriate
professional at the applicant's cost, at a level sufficiently detailed to
determine whether the criteria for amending the Development Regulations
have been met:
(a) a detailed site plan showing features such as, but not limited to:
i.
topography;
ii.
location and dimensions of existing and proposed property
and/or unit lines;
iii.
location of zoning boundaries;
iv.
use, location, and dimensions of existing and proposed
structures;
v.
existing and proposed watercourses and wetlands;
vi.
location and dimensions of existing and proposed road, bicycle,
and pedestrian networks;
vii.
location and dimensions of driveways, parking lots, and parking
spaces;
viii.
type and amount of site clearing required, if any;
ix.
location of buffers;
x.
location and dimensions of existing and proposed parks and
recreation lands, whether public or private;
xi.
location of utilities;
xii.
development densities;
Town of Cartwright Municipal Plan 2024
44
{b) elevation drawings of existing and proposed structures
including, but not limited to, dimensions and exterior materials;
(c) a site grading plan;
(d) a landscaping plan;
(e) a drainage and stormwater management plan;
(t) a hydrological assessment to determine groundwater resource
volumes, availability, quality, and sustainability pre-and post-
development;
(g) a geotechnical study;
{h) environmental studies; including, but not limited to, studies
addressing Species at Risk and environmental contamination;
(Q a wind study;
0) a vibration study; and
(k) a noise study.
Town of Cartwright Municipal Plan 2024
45
7.
Schedules and Appendices
Schedule 'A'
Municipal Planning Area
Schedule 'B'
Future Land Use Map
Town of Cartwright Municipal Plan 2024
46
Schedule 'A' - Municipal Planning Area
Town of Cartwright Municipal Plan 2024
47
This page has been intentionally left blank.
Cartwright Plan Area
SCHEOULE
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SCALE
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TOWN AUTHORIZATtON
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PROFESSIONAL CERTIFICATION
1 cortify that this MtMilcipa! Plan for the Town of
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Schedule 'B' - Future Land Use Map
Town of Cartwright Municipal Plan 2024
48
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Town of Cartwright Future Land Use
SCHEDULE
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References Use
1 Government of Newfoundland and Labrador. (n.d.). Goose Bay-Rigo/et-Cartwright-Black Tickle.
Retrieved from: https://www.gov.nl.ca/tVferryservices/schedules/i-cartwright/
2 Heritage Newfoundland and Labrador. (2002). Boreal Shield Ecozone. Retrieved from:
https://www.heritage.nf.ca/articles/environment/boreal-shield.php
3 Heritage Newfoundland and Labrador. (2002). Boreal Shield Ecozone. Retrieved from:
https://www.heritage.nf.ca/articles/environment/boreal-shield.php
4 http://www.southernlabrador.ca/home/cartwright.htm
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opening-of-exhibit-on-residential-schools/
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and Nova Scotia [Province] (table). Census Profile. 2016 Census. Statistics Canada Catalogue no. 98-
316-X2016001. Ottawa. Released November 29, 2017.
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Catalogue no. 98-316-X2021001. Ottawa. Released April 27, 2022.
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http://www12.statcan.ca/english/profil01 /PlaceSearchForm 1.cfm.
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591-XM/E. Ottawa. Released March 13, 2007.
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and Nova Scotia [Province] (table). Census Profile. 2016 Census. Statistics Canada Catalogue no. 98-
316-X2016001. Ottawa. Released November 29, 2017.
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and Nova Scotia [Province] (table). Census Profile. 2016 Census. Statistics Canada Catalogue no. 98-
316-X2016001. Ottawa. Released November 29, 2017.
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hopedale-basin-article.pdf
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https://www.mae.gov.nl.ca/wrmd/BWA_Reports/BWA...Summary_Community.pdf
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316-X2016001. Ottawa. Released November 29, 2017.
Town of Cartwright Municipal Plan 2024
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