Cox's Cove, Newfoundland and Labrador
· adopted 2020-07-16
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URBAN AND RURAL PLANNING ACT, 2000
RESOLUTION TO APPROVE
THE TOWN OF COX'S COVE
MUNICIPAL PLAN, 2019-2029
Under the authority of section 16, section 17 and section 18 of the Urban and Rural Planning Act 2000,
the Town Council of Cox's Cove:
1.
adopted the Municipal Plan, 2019-2029 for the Town of Cox's Cove on the 16th day of July, 2020.
2.
gave notice of the adoption of the Municipal Plan, 2019-2029 for the Town of Cox's Cove by posting
notices at the Town Hall building, Post Office and local stores, Joy's Variety and C.C. Pharmacy, for 30
days and by publishing the notice on the Town Clerk's Facebook page on July 17, 2020 and August 17,
2020.
3.
set the 19th day of August, 2020, for the receipt of public hearing objections and submissions.
Now under the authority of Section 23 of the Urban and Rural Planning Act 2000, the Town Council of
Cox's Cove approves the Municipal Plan, 2019-2029 for the Town of Cox's Cove as adopted.
SIGNED AND SEALED this 6ffi day of /fo{ f['flb~ 2020.
Mayor:
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Town Manager: &'\..A. -:5/~
Municipal Plan/ Amendment
REGISTERED
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URBAN AND RURAL PLANNING ACT, 2000
RESOLUTION TO ADOPT
TOWN OF COX'S COVE
MUNICIPAL PLAN, 2019-2029
Under the authority of Section 16 of the Urban and Rural Planning Act, 2000, the Town Council of Cox's
Cove adopts the Town of Cox's Cove Municipal Plan, 2019-2029.
The Municipal Plan, 2019-2029 was adopted by Town Council of Cox's Cove on the 16th day of July, 2020.
Signed and sealed this 6.fh day of /\{ DY trn a V: , 2020.
Mayor:
Town Manager:
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CANADIAN INSTITUTE OF PLANNERS (MCIP) CERTIFICATION
I certify that the Town of Cox's Cove Municipal Plan, 2019-2029 has been prepared in accordance with
the requirements of the Urban and Rural Planning Act, 2000 of the Province of Newfoundland and
Labrador.
Anna Myers, Member of Canadian Institute of Planners {MCIP)
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Table of Contents
Overview ...................................................................................................................... 1
1.0
Introduction ............................................................................................................ 4
1.1
Benefits of Community Planning ...................................................................... 4
· 1.2
Planning Area ... : ..................................... : ...................................... : ................... 4
1.3
Content of Muncipal Plan ................................................................................. 5
1.4
Permitted, Discretionary and Prohibited Uses of Land .................................... 7
1.5
Non-Conforming Uses of Land .......................................................................... 7
1.6
Council and Community Involvement .............................................................. 9
1.7
Approval Process .............................................................................................. 9
1.8
Municipal Plan Authority ................................................................................ 10
1.9
Relationship to Other Plans ............................................................................ 11
1.10
Plan Organization ............................................................................................ 13
2.0
Understanding the Community .............................................................................. 13
2.1
Community Background ................................................................................. 13
2.2
Demographic Review ...................................................................................... 14
2.3
Household Types and Residential Dwellings .................................................. 16 ·
2.4
Economic and Employment Profile ................................................................ 18
2.5
Community Planning Approach ...................................................................... 21
2.6
Global Planning Challenges ............................................................................. 23
2.7
Policy Statements of the Municipal Plan ........................................................ 24
3.0
Community Planning Vision, Goals & Objectives .................................................... 25
3.1
Community Vision Statement ......................................................................... 25
3.2
Planning Goals and Objectives ........................................................................ 26
4.0
Land Use Planning Management Policies ............................................................... 32
4.1
Overview ......................................................................................................... 32
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4.2
Administration of Land Use Planning ............................................................. 33
5.0
Sustainable Environment Policies .......................................................................... 36
5.1
Overview ......................................................................................................... 36
5.2
Environmental Setbacks ................................................................................. 38
5.3
Climate Change and Flooding Risks ................................................................ 39
5.4
Visual Environment ......................................................................................... 45
5'.5
Environmental Partnerships ............................................................ : .............. 46
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5.6
Archaeological and Cultural Resources .......................................................... 47
6.0
Residential Land Use ............................................................................................. 49
6.1
Overview ......................................................................................................... 49
6.2
Residential Policies ......................................................................................... 51
6.3
Seniors Housing .............................................................................................. 55
7.0
Commercial, Tourism and Industrial Economic Growth Land Use ............................ 55
7.1
Overview.: ...................................... : ..................................... : .......................... 55
7.2
Commercial Land Use ..................................................................................... 57
7.3
Tourism Development .................................................................................... 60
7.4
Employment Generating Land Use ................................................................. 65
7 .5
Comprehensive Development Areas .............................................................. 69
8.0
Rural Land Use ...................................................................................................... 72
8.1
Overview ......................................................................................................... 72
8.2
Planning Policies ............................................................................................. 72
9.0
Public and Institutional Land Uses: Parks, Open Space, Community Facilities ......... 74
9.1
Overview ......................................................................................................... 74
9.2
Planning Policies ............................................................................................. 75
10.0 Agriculture Land Use ............................................................................................. 77
10.1
Planning Context ........................................................................................................... 77
10.2
Policy Statements .......................................................................................................... 78
11.0 Environmental Protection Land Use ...................................................................... 78
11.1
Planning Context ........................................................................................................... 78
11.2
Policy Statements .......................................................................................................... 80
12.0 Protected Water Supply & Wellhead pROTECTED Areas ......................................... 82
12.1
Planning Context ........................................................................................................... 82
12.2
Policy Statements .......................................................................................................... 83
13.0 Infrastructure ........................................................................................................ 84
13.1
Overview ....................................................................................................................... 84
13.1.1 Water and Sewer ............................................................................................ 84
13.1.2 Waste Management ....................................................................................... 85
13.1.3 Municipal Buildings and Equipment ............................................................... 85
13.1.4 Research and Design Studies .......................................................................... 85
13.1.5 Highway 4.40 .................................................................................................... 85
13.2
Infrastructure Priorities .................................................................................................. 85
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13.3
Planning Policies ............................................................................................................ 86
14.0 Governance Approach .......................................................................................... 88
14.1
Overview ......................................................................................................... 88
14.2
Planning Policies ............................................................................................. 90
15.0 Plan Implementation ............................................................................................. 91
15.1
Overview ......................................................................................................... 91
15.2
Council Role .................................................................................................... 92
15.3
Implementation Action Plan ........................................................................... 93
15.4
Monitoring & Review ...................................................................................... 96
15.5
Future Land Use Map ...................................................................................... 96
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OVERVIEW
The Town of Cox's Cove is a rural coastal community that is situated within an outstanding
natural setting of the western shore of Middle Arm in the Bay of Islands on the west coast of
Newfoundland, approximately 16 km from the Gulf of St. Lawrence. The community has a
detached geographical location, being at the terminus of Highway 440 and located
approximately 46 km from the Trans-Canada Highway and the City of Corner Brook.
The Town was incorporated in 1969 but has its historical roots tied to fishing settlers during the
1840s; the early residents included John and William Cox. The community eventually became a
regular port of call for northern coastal boats. Forestry also played a prominent role in the
community's early evolution. Photos from 'The Rooms' in St. John's show historic logging camps
in the Cox's Cove area. In the mid-1960s, Cox's Cove became a reception center for new
residents from the resettled adjacent communities of Brake's Cove and Penquin Arm.
Cox's Cove extends from Cox's Point in the north for approximately 1.5 km to Parkes Cove in the
south along a crescent shaped waterfront and beach area. A hill to the southeast and a steep
ridge running south from Cox's Point define the other physical limits of the 7.2 square km area
of the Town. Cox's Brook bisects the built-up area of the Town in meandering pattern from the
southeast, until it flows through the beach area and to the sea.
With an estimated current population of 660 local residents, Cox's Cove has varied local assets,
strengths and opportunities, as well as challenges for the future. The Town's relatively' small
area size in relation to its compact pattern of housing development has resulted in a population
density of approximately 91 persons per square km of land; this form of residential density is
greater than the Towns of Deer Lake and Clarenville, and very similar to Gander. On the other
hand, the Town's average elevation is reported as only 9 meters above sea level, and local
flooding for housing built at lower elevations is of land use planning concern.
Residents of the Town are very dedicated and committed to the community. Local Town
Councilors serve entirely on a volunteer basis, as do fire department members. Resident
members of the Town's Culture Committee spend significant hours organizing a diverse range of
ongoing community events and celebrations. Local seniors are active with groups such as the
Cox's Cove Square Dancers and youtn are involved with a drc;1ma troupe. Despite this high level
of volunteer energy, the Town has lost its only school as a result of declining enrolments, and
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the capital and operating budget for the Town is limited to do all of Council's identified required
community projects.
The Town has recently completed its Integrated Community Sustainability Plan (ICSP) to enable
the community to access 'Gas Tax' funding for future infrastructure projects. However, the
community currently has no legislated loca·1 governance framework in place to comprehensively
guide, shape, plan and provide land use management direction for future growth and
development.
Municipalities in Newfoundland and Labrador have the opportunity to undertake land use
planning in accordance with the provisions of the Urban and Rural Planning Act, 2000. The Act
enables the Town Council of Cox's Cove to prepare and adopt a Municipal Plan to identify its
goals, objectives and policies to manage the growth and overall development of the community
for a ten-year period.
The Municipal Plan is to be accompanied by a land use map for both the municipal boundary
area and for the larger planning area of interest identified for Cox's Cove. The intent ofthe
future land use map is to designate the land areas located within the planning area for specific
land uses, such as, watershed protection, environmental preservation, parks and open space,
residential development, commercial businesses, industrial growth, and other land use
activities.
Collectively the Plan policies and the Future Land Use Map provide for specific guidelines to
address what land use type, and whether, where, how, when and at what density subsequent
land and building development should occur in Cox's Cove.
Supportive Development Regulations
Prior to final approval of the Municipal Plan, a separate planning document, the Development
Regulations and its companion Zoning Map, is also to be prepared to implement, support and
enforce the policies and land use intent of the Municipal Plan. The Development Regulations, in
effect, outline the more detailed and more regulatory requirements for land use planning and
future land/ building development. The Regulations identify land use zones, development
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standards and terms and conditions for the use of land and buildings, and advertisement and
subdivision requirements in support of the Plan's policies. In addition to the requirements set
out in these chapters, Council may in its discretion, require additional conditions.
The Municipal Plan and the Development Regulations, once approved and registered, are
administered by Town Council in the review and approval consideration of development'permit
and subdivision applications, and other land development proposal inquiries.
Collectively the Municipal Plan and the Development Regulations will provide a policy and
regulatory format for the Town to more effectively manage growth and to identify, actively
pursue and help chart the preferred future direction of the community.
Community Planning Principles
Land use planning for Cox's Cove strives to adhere to the following principles:
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To identify, preserve and protect the natural environment, watershed, archaeological,
agricultural, heritage, and cultural resources, and other valued lands and buildings, and
to designate steep slope, flood risk and other hazard lands, as non-developable;
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To make economic efficient use and minimize consumption of the remaining
developable land supply;
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To work towards a healthy, safe, stable, and a more complete and sustainable
community;
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To grow and develop in a manner that makes optimum utility of existing infrastructure
and where growth occurs within the financial capabilities of the Town;
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To pursue innovation in establishing a more diversified approach to the location,
choices, and siting of future residential housing in the community, and in the
development of other land use sectors;
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To create local economic development opportunity by devoting attention to the unique
assets of the community such as the Town's waterfront location and potential for
expansion of local tourism; and,
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To address emerging issues such as climate change.
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1.0
INTRODUCTION
1.1
BENEFITS OF COMMUNITY PLANNING
The potential benefits of a community plan for Cox's Cove are varied and include:
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The opportunity for Town Council to assume a more direct role in helping to control
growth and development, to protect the public interest and to positively influence
future change;
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Promoting sustainable growth and economic development that meets short term needs
in consideration of longer-term impacts;
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Creating a forum for local residents and businesses to be engaged, involved, consulted
and to provide input on local land use issues;
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Reducing uncertainties regarding the types of land use activities and building
development that can be permitted; and,
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Establishing a consistent approach in planning the future of the community.
1.2
PLANNING AREA
In addition to property and land located within the Town's boundary, Section 11 of the Urban
and Rural Planning Act, 2000 identifies that a Planning Area for a Municipal Plan may also
include land that is located outside of the municipal boundary area where such land will enable
the Town Council to:
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Exercise control over development that may occur beyond its boundaries;
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Control watersheds for the purpose of protecting the municipal water supply; and,
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Control the amenities of the municipality.
The Town of Cox's Cove has identified preference that the Town's Planning Area include not
only the approximate and relatively small land base of 7.21 square km located within the
municipal boundary area, but also to include those adjacent area lands for maintaining the
Town's sense of place, and for protecting and preserving important cultural and heritage valued
lands. The land use policies of the Municipal Plan are to apply to the entirety of lands that are
located within the Town's Municipal Planning Area as illustrated by following map.
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Figure 1 - Cox's Cove Municipal Planning Area
1.3
CONTENT OF MUNCIPAL PLAN
Mandatory Content
The content of this Municipal Plan has been framed in accordance with Section 13 of the Urban
and Rural Planning Act, 2000, including the mandatory provisions for:
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The inclusion of Plan objectives and policies;
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The division of land into land use classes, and identification of the permitted and
prohibited uses of land within each class;
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Proposals for land use zoning regulations;
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Provisions for non-conforming uses of land;
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Outlining how development for the Planning Area for the next 10-year period is to
occur;
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Identifying how the Plan will be implemented; and,
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The Plan is intended to meet the needs of the community for a 10-year period.
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Permissive Content
The Urban and Rural Planning Act, 2000 also identifies the permissive content that may be
considered for inclusion within the Municipal Plan; some of the provisions are briefly noted as
follows:
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Describe and determine the physical, economic and social environment of the planning
area;
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Provide for the protection, use and development of environmentally sensitive lands;
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Provide for the protection, use and development of natural resources;
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Establish areas for comprehensive development;
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Establish locations, provisions for and policies with respect to housing and facilities for
senior citizens;
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Provide for and recommend the attraction, location, development and diversification of
economic activity;
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Describe existing and proposed transportation networks and proposed networks of
streets;
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Provide for the use and conservation of energy;
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Provide for the non-removal of trees and vegetation ... and require that environmental
studies be carried out prior to undertaking specified developments;
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Provide for storm water and erosion control;
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Provide for garden suites and back lot development in residential zones;
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Propose the phasing in of a development; and,
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Make other proposals that in the opinion of Council are necessary .
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Intended Content
The intent of Cox's Cove Municipal Plan (2019-2029) is to utilize the planning direction identified
by the Urban and Rural Planning Act, 2000, and to complement this content with policy
statements relevant to the local context that help to further strengthen the environmental,
economic, social and cultural sustainability of the community, and that are financially affordable
to the Town.
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The Draft Municipal Plan commences with an overview of Council's and the community's early
involvement in preparation of the Plan. Current demographic circumstances and economic
trends affecting the community are also reviewed. A listing of Municipal Plan objectives is then
provided to identify where Council's policy attention and action initiatives are to be focused.
The policy statements, which reflect Council's recommendations for managing the varied land
use sectors of the community, comprise a significant part of the Municipal Plan content An
implementation strategy to help realize the policy initiatives is also provided.
1.4
PERMITTED, DISCRETIONARY AND PROHIBITED USES OF LAND
Each land use designation class of the Municipal Plan provides for the intended land uses within
their applicable land use overview and policy discussion. Precise permitted, discretionary and
prohibited uses of land will be refined and defined within the use zone categories of the
Development Regulations.
1.5
NON-CONFORMING USES OF LAND
It is the policy of Council with regard to non-conforming uses of land, to adhere to Section
108(2) of the Urban and Rural Planning Act 2000 which contains the following requirements
regarding non-conforming use:
"Non-conforming use
108. (1) Notwithstanding a plan, scheme or regulations made under this Act, the minister, a council or
regional authority shall, in accordance with regulations made under this Act, allow a development or use of
land to continue in a manner that does not conform with a regulation, scheme, or plan that applies to that
land provided that the non-conforming use legally existed before the registration under section 24 of the
plan, scheme or regulations made with respect to that kind of development or use.
(2) Notwithstanding subsection (1), a right to resume a discontinued non-conforming use ofland
shall not exceed 6 months after that discontinuance unless otherwise provided by regulation under this Act.
(3) A building, structure or development that does not conform to a scheme, plan or regulations
made under this Act that is allowed to continue under subsection (1)
(a) shall not be internally or externally varied, extended or expanded unless otherwise approved by
the minister or appropriate council, regional authority or authorized administrator;
(b) shall not be structurally modified except as required for the safety of the building, structure or
development;
(c) shall not be reconstructed or repaired for use in the same non-conforming manner where 50%
or more of the value of that building, structure or development has been destroyed;
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( d) may have the existing use for that building, structure or development varied by the appropriate
council, regional authority or authorized administrator to a use that is, in their opinion more
compatible with a plan and regulations applicable to it;
(e) may have the existing building extended by the appropriate council, regional authority or
authorized administrator where, in its opinion that extension is not more than 50% of the
existing building;
(t) where the non-c_onformance is with respect to the standards included _in development
regulations, shall not be expanded if the expansion would increase the non-conformity; and
(g) where the building or structure is primarily zoned and used for residential purposes, may, in
accordance with the appropriate plan and regulations, be repaired or rebuilt where 50% or more
of the value of that building or structure is destroyed.
The Ministerial Development Regulations, Sections 14, 15, and 16, (found in Appendix) further
contain the following provisions regarding non-conforming use:
"Residential non conformity
14. A residential building or structure referred to in paragraph 108(3)(g) of the Act must, where being
repaired or rebuilt, be repaired or rebuilt in accordance with the plan and development regulations
applicable to that building or structure.
Notice and hearings on change of use
15. Where considering a non conforming building, structure or development under paragraph 108(3)(d)
of the Act and before making a decision to vary an existing use of that non-conforming building, structure
or development, an authority, at the applicants expense, shall publish a notice in a newspaper circulating in
the area or by other means give public notice of an application to vary the existing use of a non-conforming
building, structure or development and shall consider any representations or submissions received in
response to that advertisement.
Non-conformance with standards
16. Where a building, structure or development does not meet the development standards included in
development regulations, the building, structure or development shall not be expanded if the expansion
would increase the non-conformity and an expansion must comply with the development standards
applicable to that building, structure or development.
Discontinuance of non-conforming use
17. An authority may make development regulations providing for a greater period of time than is
provided under subsection 108(2) of the Act with respect to the time by which a discontinued non-
conforming use may resume operation."
End of excerpt -
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1.6
COUNCIL AND COMMUNITY INVOLVEMENT
Town Council typically provides the primary input to the character, content and policy direction
of the Municipal Plan. The Municipal Plan is to also reflect the desires and needs of local
residents, businesses, community groups and organizations, government agencies and
departments, and regional considerations. As part of the Plan preparation process, varied
opportunities to engage and to receive comment from members of the local public and larger
community have been pursued, or are proposed, as illustrated below:
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Initial meeting with members of Town Council;
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Initial public open house meeting;
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Circulation of public comment sheets;
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Referral to adjacent municipality of Mclvers;
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Inclusion of findings of Integrated Community Sustainability Plan;
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External agency communication, review and input;
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Community circulation of 'draft copy' of Municipal Plan for review and comments; and,
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Revisions to draft Plan.
As the Municipal Plan (2019-2029) is implemented, community and regional partnerships, and
public involvement, is intended to be ongoing.
1. 7
APPROVAL PROCESS
Following initial public consultation, the Municipal Plan and Development Regulations are
prepared in consultation with Council. The draft planning documents are reviewed by residents
and stakeholders again in a public consultation. The Draft Regulations, both the Municipal Plan
and the Development Regulations are intended to move forward simultaneously through the
required municipal and provincial approval processes. The draft planning documents are
submitted for Provincial review; varied revisions and adjustments to the Draft Plan and
Development Regulations may be subsequently necessary. Upon release of the planning
documents by the Province, the Town can proceed to the important next step of adoption by
resolution of Council and setting the date for a formal Public Hearing.
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Under Section 17 (1) of the Urban and Rural Planning Act, 2000, a notice of Public Hearing is to
be advertised by the Town for the proposed Municipal Plan and Development Regulations. At
the Public Hearing, a Commissioner who is to be appointed by Town Council, shall hear and
receive any representations and objections to the Municipal Plan and Development Regulations,
and submit a report with recommendations to Council for consideration.
Council may approve the Municipal Plan and Development Regulations or approve the Plan
and/or Regulations with the revisions that may be recommended by the Commissioner, or
through other amendments as deemed necessary. The Plan and Regulations are thereafter to be
submitted to the Minister of Municipal Affairs for review to ensure conformance to all
applicable provincial law and policy, prior to registration of the Municipal Plan and Development
Regulations within the provincial planning registry.
The Municipal Plan and Development Regulations become effective on the published date of
notice of registration of the Plan within the Newfoundland Gazette. The Town Council shall also
proceed to have published a notice of registration within the local Advertiser newspaper.
The Municipal Plan is to be reviewed every five years and revised as deemed necessary by the
Town to account for any developments that can be during the next ten years. The Municipal
Plan is to be updated every ten years in concert with the companion Development Regulations.
1.8
MUNICIPAL PLAN AUTHORITY
Upon provincial registration of a Municipal Plan by the Minister of Municipal Affairs (i.e. the
Minister), the Plan is deemed to be a legal and binding document on Council's land use planning
decisions and consideration of development application proposals. The Town of Cox's Cove
Municipal Plan is additionally binding on all other persons, property owners, businesses,
corporations and organizations.
No Compensation
Section 5 of the Urban and Rural Planning Act, 2000, further identifies in part that:
"A person is not entitled to compensation for a reduction in the value of that person's
interest in land nor for a loss or damage to that person's interest in land resulting
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from application of this Plan."
In other words, the greater public good of the community planning direction and land use
designations adopted by Council through the Municipal Plan supersedes the Plan's potential
effect on individual property.
The Municipal Plan becomes the central land use policy document of Council and serves as the
template to help guide Cox's Cove land base into the future.
1.9
RELATIONSHIP TO OTHER PLANS
The policy statements of the Municipal Plan do not exist in isolation to other planning initiatives
that may be undertaken by the Town. Under Section 29 of the Urban and Rural Planning Act,
2000, Town Council may, for example, prepare and adopt more detailed development or local
improvement schemes such as for waterfron_t development, or land and/or building acquisition
proposals, for the purpose of pursuing specific land development strategies that are identified
within the Plan.
Development Regulations
The Development Regulations, the companion land use instrument to the Municipal Plan,
represent the more detailed land use regulatory document that maps the community into
separate and distinct land use zones. Each zone category specifies the permitted, accessory,
prohibited and discretionary uses of land, conditions for their use, land and building
development standards, and other requirements that are applicable to property located within
the Town's Planning Area. The content of the Development Regulations is varied, and also
includes subdivision requirements, advertising and signage regulations, the minimum and/or
maximum land use density of specific locations within the community, and site development
design guidelines that may apply to new and expanded land and building developments and
related activities within the community.
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Integrated Community Sustainability Plan
The Town's recently completed Collaborative Integrated Community Sustainability Plan (2007)
and its varied identified strategy initiatives are additionally intended to complement the policy
actions recommended within the Municipal Plan.
Regional and Provincial Influences
The updated Municipal Plan is also intended to work generally in concert with the strategic plan
direction and applicable initiatives of the Corner Brook-Rocky Harbour Rural Secretariat Region.
As part of the Planning Area Boundary application and provision for protection of the Town's
watershed, consultation with the adjacent community of Mclvers may be required. In addition,
Provincial policy and regulations related to environmental protection, flood plain management,
forestry, highways, archaeological protection, farmland preservation through the Agri-Foods
Division, Crown Lands and other considerations of provincial and regional interest are also
applicable to the Municipal Plan.
Municipal Affairs
Successful ongoing implementation of the Municipal Plan will further entail coordination with
the Land Use Planning division of the NL Department of Municipal Affair9 and Environment, and
for specific land development projects, referral to varied provincial and federal agencies for
comment.
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1.10
PLAN ORGANIZATION
The Town of Cox's Cove Municipal Plan (2019-2029) includes discussion and/or policy attention
in the following sections:
Section 1
Section 2
Section 3
Section 4
Section 5
Section 6
Section 7
Section 8
Section 9
Section 10
Section 11
Section 12
Introduction
Understanding the Community
Community Planning Vision, Goals and Objectives
Land Use Planning Management Policies
Sustainable Environment Policies
Residential Land Use Policies
Commercial, Tourism and Industrial Economic Growth
Rural Lands
Parks, Open Space, Community Facilities and Public Uses
Infrastructure
Governance Approach
Plan Implementation
The Municipal Plan also provides for the following map: Map 1 Future Land Use Map
2.0
UNDERSTANDING THE COMMUNITY
A successful municipal plan is dependent upon an informed understanding of the sense of place
of the community; local geography; the dynamics of the economy; current population,
demographic and residential growth trends; infrastructure challenges; constraints and
opportunities of the land base; and current demands for the local planning area. This Section of
the Municipal Plan begins to delve into this level of background detail of Cox's Cove by briefly
reviewing its history and evolution, evaluating the best available statistical data of the local
population, considering recent land development activity, and by discussing likely future
scenarios for the Town.
2.1
COMMUNITY BACKGROUND
Setting
The geographical setting of Cox's Cove adjacent to the waters of Middle Arm in the Bay of
Islands on the west coast of Newfoundland, the sloping topographical entrance to the
community at the terminus of the Route 440, Admiral Pa Ilise r's Trail, and the approximate
driving time_ of 0.75 hours to access_ urban amenities in Corner Brook, distinguish th_e Town as a
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detached rural municipality that is largely dependent on its own vision, action strategies,
initiative, volunteerism, strengths and opportunities to achieve a more sustained future.
History
The Town's Integrated Community Sustainability Plan {20i1) provides a succinct historical
background of Cox's Cove and outlines past reliance on the natural resource activities of fishing
and logging as the primary engines of growth that helped shaped development of the
community.
Population Trends
Incorporated in 1969, Cox's Cove has experienced varying levels of past population growth and
decline, noted as follows:
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The 1921 Newfoundland Census identified a local population of 91 residents in 21
households;
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By 1935, the local population had doubled to 196 persons in 38 families;
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The 1945 Census revealed the community had grown to approximately 475 local
residents in over 90 households;
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Fifty years later in 1996, Cox's Cove population was recorded as 898 residents;
-
Population decline of nearly 20% was evident by 2001 when Census data showed 719
local residents;
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A further 10 % loss of population by 2006, similar to the trend evident in most other NL
coastal communities, revealed a local population of 646 local residents;
-
The 2011 census indicated five-year population growth of approximately 2.3 % to 660
residents; and,
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The 2016 census indicated a population of 688 people, another increase of 4.2%.
2.2
DEMOGRAPHIC REVIEW
A detailed demographic review of the community from Statistics Canada data helps to answer
the question "Who are we planning for?" The following table shows the change in population
over the period from 2001 to 2016 and the graphic shows how the different age groups changed
during that time.
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Total Population change (2001-2016)
Year:
2001
2006
2011
2016
Population
720
646
660
690
Town of Cox's Cove: Population trends 2001-2016
800
700
600
500
400
300
200
100
II
0
-- ··-
Ill Ill
--
Total
0-14
15- 19 20 to 24 25-44
45-54
55-64
65-74
75-84
85+
years
- 2001 - 2006 - 2011 - 2016
Taken collectively, demographic patterns indicate that nearly 3 or every five residents in Cox's
Cove are 45 years of age and older- nearly 2 of every five local residents are 55 years of age and
older and less than one in every five local residents are aged 19 years and younger; the local
population therefore is getting older.
Similar to other rural small communities of Atlantic Canada, it appears that young persons upon
completion of high school years typically move away to further their education or to pursue
employment. While more deaths than local births are occurring, recent local population stability
seems to be primarily sustained by a yearly trend of retired individuals, aged 55 years and over,
moving into the community.
The Town and local residents have long ago actively responded to the ongoing aging trends of
the local population through development of the local Seniors Club and building facility, and
through dedicated seniors' voluntary participation with varied other community groups and
organizations.
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From a Municipal Plan perspective of developing a land use planning framework for the next
ten-year period as required by the Province, and to identify longer term community
sustainability needs, this brief demographic snapshot of the Town signals:
-
the opportunity to explore a policy direction that seeks to diversify the age profile
patterns currently evident within the community; and,
-
the challenge to provide continued responsive policy approaches to meet the future
community needs of the expanding proportion of older local residents.
2.3
HOUSEHOLD TYPES AND RESIDENTIAL DWELLINGS
The trend in housing reflects the change in population, as illustrated in the following table
showing the number of private dwellings from 2001- 2016 according the Census Canada.
Number
325
309
313
338
The 2016 Stats Canada data identified a total of 338 private residential dwellings in Cox's Cove;
294 of the dwellings are occupied by usual residents. Nearly all residential dwellings are single
unit detached houses.
-
There are 294 private dwellings occupied by their usual residents in 2016; of which
single detached dwellings make up 280 units, 15 are 'other attached', 5 are semi-
detached and 10 units are rowhouse dwellings;
-
Data from 2006 identified that 9 of 10 homes in the community are occupied by house
owners versus renters, an ownership proportion significantly larger than the Province
and for Canada as a whole;
-
The varied household types consist of households without children at home {39% from
37$ in 2011), couples with children {34% up from 25%) in 2011), one-person households
{22% - same as 2011)), one-person households {2% down from 7% in 2011) and other
household types such as related and unrelated individuals living together {2% - down
from 8%in 2011);
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In terms of families with children, from the total of 190 couple census family, 60% did
not have children; of the couple and lone parent families with children, 40% of these
families consisted on lone-parent households;
-
Over 86% (compared to 71 % in 2011) of all house maintainers in the community are 45
years of age and older;
-
The majority of all homes in the community (88% - compared to 75% in 2011) were buiit
before 1990, and 94 % of these residences are in a general state of good repair that only
require routine maintenance;
-
Approximately 33% of all housing is deemed to have a small building envelope with a
dwelling size of 5 or less rooms. On the flip side, 64% of all houses in the community
have three or more bedrooms;
-
The 2016 data identified that the median value of residential dwellings in Cox's Cove
was approximately $100,187. and the average value of all dwellings was an estimated
$139,198.
-
The Canada Mortgage and Housing Corporation standard for identifying the potential
for affordable housing need is based on an assumption that individuals/families should
pay no more than 30% of total household income on shelter costs. The national
household survey component of the 2016 Census indicated that about 30% of local
households, 75 in total were spending 30% or more of total household income on
housing costs.
-
Residential property sizes in the community vary and range from small lot sizes with 7.6
metres to 15.2 m of road frontage, to larger parcels with 36.6 m of frontage to the road.
The household profile of Cox's Cove illustrates a community with a limited property assessment
base to levy taxation and to generate financial revenue to provide additional budgetary services
and amenities to local residents, and to maintain, operate and expand the Town's infrastructure
and capital assets.
A review of the residential inventory additionally indicates a message that given the relatively
small land base of the community, and in consideration of local land use constraints related to
sloping lands, proximity to the ocean and flood risks, and infrastructure servicing c~pacities,
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there will be a need to make optimum utility of the remaining available and developable lands
as part of a future growth strategy.
It is acknowledged that the housing profile does however identify stability in home ownership
and diversity in family types. Investment confidence in the community is also evident through
recent construction of new homes. There is merit however in exploring varied policy approaches
to expand the residential makeup of the community, including identifying opportunities for
more affordable housing alternatives for all local residents and for pursuing policy options of
different types and sizes of residential dwelling units for seniors and others in the future.
The challenges for managing future change in residential housing will be:
-
to identify the capacity of local infrastructure to support new growth;
-
to determine where future housing should be located;
-
to evaluate what housing types may best meet local demand and future needs;
-
to establish the most feasible residential lot area sizes and new subdivided property
dimension regulations to guide and encourage new developments; and
-
to explore where innovation in land use planning for Cox's Cove may apply.
2.4
ECONOMIC AND EMPLOYMENT PROFILE
Assessment ofthe local economic and employment circumstances further help to understand
the dynamics of the community and the characteristics of the local population.
-
The best available data from Statistics Canada reports that the median total income
recipient in private households was $24,166, lover that the provincial median of
$31,754;
-
The median income (before tax) for economic families in 2015 was $56,448, versus the
provincial median of $83,589.
-
The disparity between local incomes and provincial averages may be attributable to a
number of factors, including high proportion of retired persons living in Cox's Cove,
comparatively low labour force participation rates, educational background, limited
number and seasonal nature of local employment opportunities, and high ratio of
reliance on government transfers. ·
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Since Cox's Cove has traditionally been a resource economy based upon the fishery and
forestry, educational attainment is reflected in the relatively low proportion {51% - up
from36% in 2011) of local residents over 15 years of age with a high school diploma or a
postsecondary certificate, diploma or degree.
-
Of the 585 individuals aged 15 years and over in 2016, 47 % of local residents or 280
persons were not in the.labour force. Of the 300 local residents available for work, only
195 reported being employed and 110 local residents were identified as unemployed.
-
This tabulated low proportion of only 1 of every 2 persons that are available for work
actually working represents a significant economic characteristic of the community.
-
The employment situation in Cox's Cove however has improved considerably over the
past twenty years. In 1992, the number of local residents who collected unemployment
insurance at some point during the year was 420 persons representing an
unemployment insurance factor of 85.7%; by 2012, there was a decrease to 245 persons
collecting unemployment financial assistance at some point during the year.
-
Data from 2010 identifies that only 20% of local employed persons work full time which
went down to 14% in 2015, with an average annual of 25.2 total weeks worked in 2011
which increased to 30 in 2015. The capability for individuals to work fulltime for the
entire year verses seasonal and part time employment varies according to economic
conditions and resource industry circumstances. The two major local employers of the
fish processing plant of Barry Seafoods Inc. and the mink growing operation of NuMink
Inc. are only able to provide varying levels of work opportunities.
-
The occupation profile of local residents participating in the work force generally reveals
that those jobs related to trades, transport and equipment operators and related
occupations represent 27%; sales and service sector positions provide for 30% of all
occupational placements; employment unique to processing, manufacturing and utilities
account for 12% (down from23% in 2011); occupations directly related to primary
industries {12%} and education/law/social/community/government (12%) and business
and finance contributing {10%}.
-
Of the individuals who work fulltime, the median commuting distance is 45.7km with a
travel distance of approximately one hour. The commuting distance illustrates that a
significant portion of local residents travel to Corner Brook and area for work on a daily
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basis, primarily between the hours of 7am and 9am. The data also reveals that only 10%
of these commuting residents share a ride as a passenger.
Evaluation of local economic and employment data presents a scenario that Cox's Cove is a very
resilient community. Local incomes are lower than provincial averages. Over half of local adults
are no longer active in the workforce, and just over half of the persons who are able to work,
generally secure some level of employment on an ongoing basis. As a result, a large number of
local residents are deemed to be likely very resourceful in cutting their own winter fuel in the
form of firewood, hunt game and fish, and pursue other lifestyle options to sustain their
economic survival in the community. It is also apparent that many local residents are so
committed to living in the community that they are willing to commute on a daily basis on a long
and winding road to Corner Brook and area to work.
Exploring and realizing enhanced economic development opportunities will be an ongoing
challenge for the community. The Town of Cox's Cove does have the location advantage of
strong regional connections to the economic activity and employment opportunities within the
City of Corner Brook {46 km. and approximately SO minutes away), and the Town's principal two
industrial employers, as a means to retain local population and to attract new residents. The
affiliation with the regional business community and with local industry provides Cox's Cove
with a somewhat more optimistic projection for a stable foundation for the community in the
future than what many other rural coastal communities of NL may have available. The Town's
historic attachment to the fishery and fish-processing industry is still an important economic
consideration for the community as future quota changes and allocations are influenced by such
long-standing reliance and connections.
The economic, employment and financial challenges of Cox's Cove represent only one facet of
the future evolution of the community. To provide for considerations of maintaining a high
quality of life, identifying new housing and land development policies, effective environmental
management, discussing social/ cultural/ recreational priorities and the needs of seniors for
enhanced active and healthy living, pursuing potential tourism and commercial expansion
opportunities, creating a more vibrant public place and experience in the waterfront area of
Town, examining options for governance needs and moving towards a goal of achieving longer
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term community stability; sustainable land use planning is more about developing policies to
shape future growth in a more comprehensive, diversified, balanced, and complete community
manner. This contrasts to most small-town community models in Atlantic Canada of holding
open and welcoming arms to all development proposals that come in the door under the
misguided impression 'that all growth is good growth for the community.
2.5
COMMUNITY PLANNING APPROACH
Population Projections
Often Municipal Plans identify a population projection for the community to enable a calculation
of how many new residents may be moving into the community over future years, so as to
determine:
-
how much land to accommodate new housing will be required;
-
where the development land should be located;
-
what residential building types and densities should be pursued; and
-
what level of supporting parkland, open space, commercial, employment, public use,
and other community infrastructure may be necessary to service the anticipated
expanded population?
Cox's Cove is not a community currently undergoing or projected over the ten-year life of this
Plan to experience significant growth and expansion. The community priorities are suggested to
be:
-
to focus on achieving and maintaining stability in the community;
-
to continue to provide cost effective municipal services; and,
-
to pursue initiatives to help make the Town more physically/ visually/ functionally
attractive, appealing and comfortable for those residents who remain, for tourism
visitors who wish to experience the area and for those new-comers who may choose to
reside, build a new home and/or establish a business in the community.
As part of this community direction, the Municipal Plan outlines varied new land use
opportunities, without dependence upon specific future population projection targets. As future
21
Canada Census programs occur, and new population data is received, the demographic and
economic pulse of the community can be reviewed, and policy structure amended as necessary.
Government Programs
Higher levels of government have in the past typically implemented either market or short-term
government investment solutions, such as loans to fish plants or infrastructure programs to help
upgrade roads and municipal utility services, as a means to address the unemployment and
economic challenges of resource dependent communities. Rural community development from
a more sustainable perspective does not deny the importance and positive employment effect
of these intervention approaches from higher levels of government, but longer-term success can
only be achieved if the approach is community based.
Rural development research for coastal communities from the Canadian Centre for Policy
Alternatives has found that spending on infrastructure has the most beneficial impact to
creating a long-lasting positive influence ($1.50 for every dollar spent); housing developments
are not far behind ($1.40 for every dollar spent). The Town therefore needs to maintain
effective relationships with provincial and federal governments and continue with funding
applications for infrastructure improvements for a reliable and high-quality water supply from
Frenchman's Pond, adaptation strategy to flood risks, sewer treatment, provincial paving
upgrades of Highway 440, open space walking trails, parkland sites and recreational lands.
Strengths and Assets
The sustainable focus for Cox's Cove also needs to be specifically aligned with community
strengths and local assets, rather than emphasis on problems and obstacles. Through this
perspective, the importance of the local fishery and the mink farm is respected as core
economic strengths of the community, but the Municipal Plan emphasizes other local attributes.
The Town has an outstanding tourism asset in the natural marine environment and setting of
Middle Arm, as well as cultural strength and tourism potential in the resettled community of
Brake's Cove and the archaeological opportunity for Sammy's Beach. The Town also possesses
relatively affordable housing, a core of local business services, varied community-minded and
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church organizations, and underutilized strengths in the visitor potential of the Main Street
waterfront and the area's planned natural trails for active mobility excursions.
The sustainable approach also means that local residents, businesses and community
organizations will need ongoing encouragement to continue to volunteer their time and become
involved with Town Council in supporting strategies and actions that will help. improve the local
sense of place and lead to a more stable, complete and sustainable community. In other words,
the social economy of local residents and extensive commitment of local volunteers in Cox's
Cove needs to be continually nurtured, encouraged, empowered, expanded and more
effectively utilized, wherever feasible.
2.6
GLOBAL PLANNING CHALLENGES
The influences to future growth and development in Cox's Cove go beyond local and regional
opportunities, challenges and boundaries. Increasingly issues of natural disasters and political
instability, the escalating price of oil, the security of food supply, and world-wide economic
conditions are having an effect on local communities.
Even climate change policies are changing the way local governments plan for the future. Senior
levels of government are beginning to require that communities look at their Greenhouse Gas
{GHG) emissions and change course in the manner that their communities are developed. In
reality, implementation of Greenhouse Gas Reduction Targets has proved challenging at the
rural local government level since they have little influence over GHG emissions from sources
such as existing regional transportation networks and provincial building codes. Local
governments do however control decisions on land use, infrastructure planning and policies for
energy efficient building and site design, and the way that growth is actually shaping their
community of tomorrow.
The Province of NL has additionally explored a model and template for local governments to
implement in determining their 'carbon footprint' so as to develop policies to reduce the extent
of the municipality's Greenhouse Gas {GHG) emissions, and to develop adaptation strategies to
minimize the risk of damage from the increasing frequency and intensity of storm and weather
events caused by climate change.
23
For Cox's Cove, future land use planning will need to be cognizant of these and other changing
demands of the world around us and take a proactive approach to managing future change
within the community. Climate change issues relating to a potential rise in sea levels of Middle
Arm, flood risks of Cox's Brook, forest fire interface risks, local food security, and automobile
reliant local transportation patterns to Corner Brook are all very real land use planning
considerations to the community.
The Town has over the years, developed an intimate understanding of the realization of the
need, and the ability to respond to external influences and adopt local strategies of doing more
with less while maintaining the strength of the community. The Municipal Plan intent is to
provide a land use management framework to assist the Town to be even more resilient to
change.
2.7
POLICY STATEMENTS OF THE MUNICIPAL PLAN
The format of the content of the Municipal Plan to follow includes:
-
a listing of varied community planning terms and definitions;
-
an introduction of the community's planning vision, goals and objectives;
-
a discussion of the administrative approach to be utilized by the Town in managing the
Municipal Plan and Development Regulations; and,
-
a policy outline of each of the land use designation categories of residential,
commercial, employment generating, open space, et al.
Within an introductory section to each land use sector, planning context will be provided as
background to the policy statements. The discussion focus of the Municipal Plan is the
formulation of Policy Statements and land uses depicted by the Future Land Use Map.
Upon final adoption and registration of the Municipal Plan, the Policy Statements of the
Municipal Plan (2019-2029) will represent the formal land use policy positions of Town Council.
Specific Policy Statements are also intended to represent 'actions to be achieved' so that the
substance of the Plan has merit and will result in hopeful ongoing positive change for the
community.
As the Town grows and evolves over the next five years, the Municipal Plan and varied policy
statements are to reviewed and are to be revised and/or amended to reflect the most current
goals and land use planning requirements of the community.
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Complementing the Municipal Plan policies and map will be the regulatory detail provided by
the Town's Development Regulations. The extent of regulatory detail and requirements for the
Development Regulations is determined by the policy direction of Town Council within the
Municipal Plan. The updated Regulations divides the Town into varied land use 'zones', and also
brings new and innovative land use regulatory provisions and conditions of use to help facilitate
new housing and new opportunities for commercial growth and environmental management.
The Development Regulations also provides the opportunity for Town Council to adopt
Development Design guidelines to manage the siting, layout, and appearance of new
developments for selected residential uses, commercial, industrial and other proposed site and
building projects.
3.0
COMMUNITY PLANNING VISION, GOALS &
OBJECTIVES
The outlined community vision, goals and objectives within this Section have been developed
following a site visit assessment of the community, a review of the Town's Integrated
Community Sustainability Plan, an assessment of the current demographic, housing and
economic conditions of the community, and input provided by Town Council and varied
comments received from consultation with local residents. Collectively the established vision,
goals and objections help to shape the desired land use policy direction for the content of this
Municipal Plan, and the accompanying Development Regulations.
3.1
COMMUNITY VISION STATEMENT
The community vision statement, as outlined below, embraces local values and future
aspirations for the Town, and helps chart the future land use planning direction for Cox's Cove.
"The Town of Cox's Cove is a welcoming west coast NL community that respects its
historical and cultural past and strives for a secure and sustainable future based upon
coordinated and orderly land use planning and growth management through principles
of environmental integrity, economic stability and social cohesion."
25
3.2
PLANNING GOALS AND OBJECTIVES
To help achieve the community's vision, five community goals are identified to guide future land
use planning in Cox's Cove noted as follows:
1.
To support a comprehensive environmental and sustainable development strategy
for community land use planning;
2.
To pursue stability within the community through a balanced and diversified
approach to residential growth, open space and recreation opportunities, cultural
and social values, needs of seniors and local quality of life considerations;
3.
To explore opportunities for community economic development, additional
business growth and an increased level of local tourism services and experience;
4.
To provide for enhanced governance considerations for managing future change
and for the provision of infrastructure services of municipal water, sanitary sewer
treatment, road improvements, recreational amenities and other local needs; and,
5.
To explore an increased level of community and municipal partnerships.
Planning Objectives
Each of the outlined five planning goals will be addressed over the ten-year term of the
Municipal Plan through attention to varied planning objectives that will be in turn, be reflected
through Council's policy statements of the Municipal Plan and regulatory requirements of the
companion Development Regulations.
Recognizing the current financial challenges and funding limitations of the Town, three
significant questions need to be asked with each and every policy decision and initiative
contemplated by the community, as follows:
-
What are the desires of the community?
-
What does the community really need?
-
What can the community financially afford?
Planning Goal # 1
To support a comprehensive environmental and sustainable management strategy for
community land use planning by adopting a sustainable planning land use policy direction. of
improving the social, environmental and economic well-being of the community through
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effective planning and land use management, and with supportive future land use planning
designation mapping for all property within the Town's Planning Area boundary;
Planning Objectives:
-
Identify and designate sensitive environmental, watershed, agricultural, steep slope,
hazard and other lands to be preserved and protected, and develop supportive
management strategies to generally preclude these lands from development;
-
Consider public safety in local climate change challenges and flood risks;
-
Establish land development setbacks to watercourses and other bodies of water;
-
Address local sources of pollution flowing into waterways;
-
Preserve significant community views by designating the land as Conservation and
protect these and other valued lands with tree cover;
-
Support local heritage, culturally significant lands, archaeological research and field
work;
-
Adopt a community appearance program of maintaining private property aesthetics,
cleaning litter, et al;
-
Encourage community participation initiatives such as an annual beach area cleanup
under programs such as the Great Canadian Shoreline Cleanup;
-
Implement site and building design guidelines for specific land uses; and,
-
Develop community engagement opportunities.
Planning Goal # 2
To pursue stability within the community through a balanced and diversified approach to
residential growth, open space and recreation opportunities, cultural and social values, needs of
seniors and local quality of life considerations.
Planning Objectives:
-
Support comprehensive land use policy statements within the Municipal Plan;
-
Develop a coordinated approach to community planning by designating land for the
most appropriate use, and by minimizing potential for adjacent land use conflicts;
-
Protect the .serviced area developable lands for residential,.commercial and
employment generating growth;
27
-
Identify varied residential designations to provide for economic utilization of the land
base and to meet the needs for affordability, smaller lot size residential homes, garden
suites, and for higher density forms of housing for seniors and others;
-
Enhance opportunities for recreation, parks, public spaces, active and healthy living, and
for enhancing the local sense of place and quality of life;
-
Introduce parkland dedication requirements in the fo.rm of land and/ or cash~in-lieu for
new subdivision developments;
-
Designate locations for future pedestrian walking trail systems;
-
Explore opportunities to achieve passive and active pedestrian and recreation use of
waterfront area;
-
Designate Brake's Cove and Sammy's Beach as Conservation lands for their heritage and
archaeological importance;
-
Continue to develop the Town's socio-cultural assets as an attraction for potential new
residents;
-
Provide policy provisions to address the emerging needs of seniors; and,
-
Pursue an elevated sense of place in the community by creating an ongoing inventory of
public spaces.
Planning Goal # 3
To explore opportunities for community economic development, additional business growth and
an increased level of local tourism services and experience.
Planning Objectives:
-
Develop a coordinated approach for community economic development;
-
Pursue ongoing dialogue and maintain strong relations with local fish plant, and the local
mink farm, as well as with other existing local businesses;
-
Designate locations for employment generating industrial forms of business growth;
-
Establish policy provisions for home-based businesses, bed and breakfast operations,
child care facilities and similar small-scale businesses;
-
Identify opportunities and increase the level of local services, amenities and experiences
for tourism visitors;
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Encourage outdoor, cultural and heritage adventures and active participatory visitor
experiences;
-
Develop a planning strategy to achieve physical and design improvements to more
effectively utilize and showcase the Main Street central waterfront area for visitors;
-
Utilize tourism expansion as a means for small business growth; and,
Planning Goal # 4
To provide for enhanced governance considerations for managing future change and for the
provision of infrastructure services of municipal water, sanitary sewer treatment, road
improvements, recreational amenities and other local needs.
Planning Objectives:
-
Adopt an approach of Council identifying annual and longer-term municipal
management and community planning goals and objectives, and providing for a semi-
annual review process to determine progress status of the identified annual goals and
objectives;
-
Identify a boundary area that represents the serviced capacity area extent for municipal
water and sewer treatment;
-
Establish requirements for municipal and private property development storm water
management;
-
Evaluate advance street planning concepts to identify new road routings within
community to allow for a more connective roadway network;
-
Prepare infrastructure servicing requirements for new land and subdivision
developments, including standards for adjacent road improvements to support new
developments;
-
Consider the feasibility or authority to implement a community amenity fee levy that
would apply at time of new developments as a means to generate new sources of
funding to pay for additional servicing demands for fire department equipment,
parkland improvements and roadway upgrades as a result of new development;
-
Explore regional governance opportunities for sharing of services wherever financially
and environmentally feasible;
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Planning Goal # 5
To explore an increased level of community and municipal partnerships, wherever possible.
Planning Objective:
-
To expand the capacity of the Council and community to provide a wider range of
services and opportunities through partnerships;
Policies:
-
Acknowledge the limited financial capability of the Town and recognize the continued
need to utilize the social economy of local volunteers and the participation of
educational institutions and external government departments and agencies to assist
the community on varied policy and program initiatives;
-
Provide for an inclusive structure of Council, including the formation and appointment
of local residents to additional Advisory Committees of Council where feasible to
facilitate local involvement in community land use planning initiatives;
-
Enhance ongoing partnerships and direct communication through Council meeting
invitation attendance to varied provincial departments of highways, Municipal Affairs
and Environment, Crown Lands, provincial archaeology department and other
applicable provincial representatives responsible for forestry, tourism and culture,
business development and municipal and intergovernmental affairs, so as to discuss
issues of importance to the community and the possible assistance role that external
entities may provide;
-
Utilize the annual Council goals and objectives as a means to prepare an identification of
community priorities for discussion with elected members of provincial and federal
governments;
-
Maintain regional cooperation with adjacent and regional communities and
municipalities;
-
Continue support for community initiatives of the local volunteer fire department, the
Golden Rainbow Seniors Club, the Wellness Foundation, church groups and other
community service clubs and organizations;
-
Discuss the merits of formation of a local business representation organization;
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Consider potential linkages with university and college educational institutions to assist
the community with varied shared initiatives such as land-based mapping with the
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College of the North Atlantic, student field trip case study exercises, cost shared
summer employment projects and specific community projects with Memorial
University of Newfoundland's Harris Centre and Grenfell Campus Environmental Policy
Institute and other program providers; and
-
Explore opportunities for specific community project and initiatives participation and
involvement with.the Department of Innovation, Business and Rural Development,
regional economic organizations and the Corner Brook - Rocky Harbour Region Rural
Secretariat.
Other:
- Converse with Provincial Crown Lands to identify and map all provincially owned lands
located within the Town's Planning Area boundary, and identify strategic lands for
acquisition to facilitate coordinated and comprehensive land use planning;
- Create an inventory and mapping listing of all serviced, zoned, vacant and developable lands
as an information resource to market land development sites and opportunities;
-
Explore options to expand the community's commercial business sector;
- Target to achieve longer tourism stays from local visitors;
-
Pursue funding assistance to enable the preparation of a comprehensive signage for the
community, and implementation of effective community marketing initiatives.
-
Expand the Capital Plan budget process beyond one and five-year plans to include a ten-year
capital expenditure forecast, with corresponding funding and revenue sources;
-
Develop water conservation measures, including water usage management at the fish plant;
-
Pursue annual assessment of priority roadway maintenance issues, ditching and storm water
culvert replacement and capital improvement upgrades to the community's sole
transportation access, Highway 440 through ongoing and regular meetings and updates with
the provincial highway representatives.
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4.0
LAND USE PLANNING MANAGEMENT POLICIES
4.1
OVERVIEW
The management approach for the Town of Cox's Cove first Municipal Plan shall be to be more
proactive in firstly identifying the varied and diverse intended uses of land for all property
located within the Municipality's Planning Area Boundary, and secondly, to outline the policy
management direction to guide and shape land use activity in each of the designation
categories.
The Municipal Plan represents the Town's planning framework for how to manage the land
base. As long as land use activities on a property coincide with the land use designations and
policy intent of the Plan, coordination and consistency is how land is utilized is achieved. Where
an alternate use of the land is desired, or where land development is proposed, Town Council in
consultation with the Province, retains approval authority.
Review of Development Applications
Town Council, in conjunction with Town staff, shall review all new land development proposals
for subdivision development, commercial and employment generating uses, higher density
residential uses and for similar land development activities for conformance in accordance with
the applicable policies of the Municipal Plan and the requirements of the companion
Development Regulations. All new building proposals including new single unit residential
homes, shall be sited on a property in accordance with both the Municipal Plan policies and the
property line setback requirements of the Development Regulations.
Proposals for all land development will be required to submit a development application to the
Town. Town staff and Council will comprehensively review and evaluate the development
proposal in relation to the new Municipal Plan policies and zoning requirements of the
Development Regulations.
Land development applications that are deemed to be in accordance with the Municipal Plan
and Development Regulations shall be issued a Development Permit by the Town to proceed
wit_h the proposed land development work.
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Where a land development proposal does not meet the land use policy intent of the Municipal
Plan and/or the use zones or development standards of the Development Regulations, Council
will need to either reject and not approve the development application until an application
amendment to the Plan or Regulations is paid for by the applicant and subsequently approved
by Town Council and the Province, or the applicant adjusts and revises the development
proposal in accordance with the new Municipal Plan and Development Regulations land use
planning framework policies and requirements.
4.2
ADMINISTRATION OF LAND USE PLANNING
Policy Statements
4.2.1
All new development (as defined in the Urban & Rural Planning Act, 2000 and proposals
for subdivision of land, shall be required to submit a land use development application,
accompanied by an application fee in an amount as determined by Council, and by
providing supporting background land use development information as determined to
be required by Council, to the Town for conformance review to the Municipal Plan and
Development Regulations, and approval consideration by Council for a Development
Permit.
4.2.2.
Proposed development must conform to the policies of the Municipal Plan and the
requirements of the Development Regulations for a 10-year period as required in
Section 13 (2) of the Urban and Rural Planning Act, 2000.
4.2.3
Council will consider revisions and changes to an application as part of the application
process when a land use application does not conform to the policies of the Municipal
Plan or the requirements of the Development Regulations. An applicant may choose to
make alterations to the development proposal so as to be in conformance with the land
use planning policies and requirements, or an applicant may make application and pay
the required fee to request Council's consideration of an amendment to the Plan
policies and/or zoning requirements. Such an amendment request may or may not
receive the support of Council for a revision. If an amendment application does move
forward, subsequent approval by Town Council and by the Province through Sections 14
to 24 of the Urban and Rural Planning Act, 2000, will be required.
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4.2.4
The development application fee amount that may be determined by Council to be
required for all land use applications shall be generally sufficient to account for Town
staff time to review and prepare a report recommendation to Council on the
development proposal, and where an amendment to the Municipal Plan and/or the
Development Regulations is required, the application fee amount shall be sufficient to
pay for the costs of all subsequent Public· Hearing, newspaper advertisement and
related statutory costs in accordance with the Urban and Rural Planning Act, 2000.
All land use development applications shall be accompanied by sufficient supporting
information to enable Council to adequately review and consider the development
proposal; such information may include all watercourses and other environmentally
sensitive features located upon or adjacent to the subject land, site topography,
property lines and proposed new building siting thereto, site servicing requirements,
proposed site access/egress locations and potentially the site and building design of the
proposed new development and a legal survey plan prepared by a registered
Newfoundland and Labrador land surveyor.
4.2.5
Where Council determines that additional professional information is required to enable
to Council to adequately review and consider the development application, the
applicant shall be solely responsible to pay for the costs related to professional opinion
on environmental, geotechnical, civil engineering, hydrological and similar professional
opinion.
4.2.6
Council may consider Comprehensive Development Plan on a parcel of land within
community; the Development Regulations will define a Comprehensive Development
Plan and set out application requirements and development conditions which may
include zero lot line development. A comprehensive development may be approved by
Council in any zone as a development and/or subdivision with public or private services.
4.2.7
The Council may also, at its discretion, approve the erection of dwellings which are
designed to form part of a zero lot line development or other comprehensive layout
which does not, with the exception of dwelling unit floor area, meet the requirements
of the Use Zone Table, provided that the dwellings are designed to provide both privacy
and reasonable access to natural daylight and the overall density within the layout
conforms to the regulations and standards set out in the Use Zone Table in the
Development Regulations.
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4.2.8
The Development Regulations will set out the requirements for residential subdivisions.
Minor subdivisions of four (4) or fewer lots which do not require new public or private
road construction or the installation of utility infrastructure or water and sewer services
(other than private connections) are not required to provide a major subdivision
application (5 lots or more). Minor subdivisions must comply with the development
standards associated with the Use Zone and the requirements of the "Groundwater
Supply Assessment and Reporting Guidelines for Subdivisions Serviced by Individual
Private Wells guidelines" of the Water Resources Management Division. The procedure
provided in these guidelines for assess whether small subdivision development is
subject to groundwater assessment will be set out in the Development Regulations.
4.2.9
The following uses will be permitted in all land use zone:
a.
Development associated with public infrastructure and services, including public
transportation infrastructure and utilities;
b.
Conservation or open space uses including parks and pedestrian trails and lands
set aside for environmental protection purposes;
c.
Mineral exploration not classed as 'Development';
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5.0
SUSTAINABLE ENVIRONMENT POLICIES
5.1
OVERVIEW
Sustainable community planning for Cox's Cove means in part, managing the land base and local
resources for today's needs in a manner that respects the future. A key aspect of sustainability
therefore is an approach of identifying what local lands and resources are deemed to be
valuable and are important to preserve and protect for both today's and tomorrow's residents
of the community.
By pursuing the community planning direction of clearly identifying upfront and designating
those lands and locations within the Municipal Planning Area Boundary that are deemed
sensitive to land development or are viewed as valuable assets to the Town, or are potentially
hazardous for land development, the remaining land base of Cox's Cove becomes available for
future growth and development consideration. In this manner, sustainable and comprehensive
environmental management provides for more certainty in how local development of the land
base should proceed and be shaped.
This Section of the Municipal Plan probes varied environmental assets and features of land
within Cox's Cove Planning Area Boundary and offers policy statements for their management.
Environmental Assets
The Town's environmental assets are varied and many. They include the community's
oceanfront location, the valuable view corridors to geological anomaly features of Pond Point,
and to the forested natural areas of Woman Cove, Penquin Arm and Goose Arm, all of which are
situated in the fjords of Middle Arm, the steeply sloping forest lands adjacent to Highway 440,
varied creek watercourses and their adjacent riparian, wetland and marsh areas, agricultural
lands, culturally and historically important lands of the resettlement community of Brakes Cove,
and the archaeological evidence of a former Paleoeskimo summer camp at Sammy's Beach.
These local assets are collectively indicative of sensitive and valued lands to address through
Municipal Plan land use map designations.
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The Municipal Plan's proposed expanded Planning Area Boundary area is additionally based in
large part on protecting the Town's assets of its drinking water supply and watershed area.
The Development Regulations will similarly provide for parallel use zone categories to protect
and preserve these valued environmental and sensitive community lands.
Water Supply
The Town's drinking water supply locations consist of the following primary sources:
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the main water supply for the Town is the Cox's Brook Water Supply Area which
includes Frenchman's Pond; it is located approximately 5 km southeast of the Town and
services over 600 local residents; and,
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for residents living above an approximate 75 metre contour elevation within the
community, two drilled artesian wells serve nearly 100 local residents of the
community.
Each of the systems provide for chlorination treatment; the surface water supply of
Frenchman's Pond additionally includes filtration. These community water sources are to be
zoned on the Development Regulations Land Use Zoning Map as Protected Water Supply
Protection Areas.
Ideally a water supply and watershed area should be retained in a natural state with no
conflicting land uses or human activities so as to maintain the quality of the water supply for
domestic use on a long-term basis. There is a need within the Municipal Plan policies however to
acknowledge historic and ongoing uses of land within the Frenchman's Pond watershed,
including limited forestry, domestic firewood cutting, recreation cabin use, hunting, all-terrain
vehicle and snowmobile use and similar activities. The continued use of recreational cabins and
associated activities within a protected watershed however requires attention to safe septic
effluent disposal, the use of motorized boats, fuel storage, waste management disposal and
ongoing water quality monitoring. Before these uses are approved by the Town, the Water
Resources Division with the provincial government must be consulted in order to approve the
application and provide comments or conditions or refuse the application due to water quality
concerns.
Prior to the start of construction, a proponent must apply for and obtain a permit under the
Water Resources Act, 2002, specifically Section 39
http://assembly.nl.ca/Legislation/sr/statutes/w04-01.htm
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for any proposed developments within the Cox's Brook Protected Public Water Supply Area
servicing the Community of Cox's Cove. Also, any work within this designated Protected Public
Water Supply Area must comply with this Department's Policy for Land and Water Related
Developments in Protected Public Water Supply Areas
http://www.env.gov.nl.ca/env/waterres/regulations/policies/water related.html.
At one point, the Town of Cox's Cove had its own watershed committee for the management of
the Cox's Brook drinking water source area and a watershed management plan was developed.
There is another Protected Water Supply Area in the northwest corner of the Town of Cox's
Cove Planning area, but it is not part of the water supply system to the residents of the
community.
Additional Environmental Considerations
Community issues related to considerations of environmental setbacks, enhanced
environmental partnerships, initiatives to address the visual appearance of the Town, lands of
cultural and archaeological significance, community emergency planning and management of
lands with agriculture capability are also a significant part of a sustainable environmental
direction that the Town needs to embrace as part of its first Municipal Plan._Each of these
environmental consideration issues will be subsequently discussed in policy format.
5.2
ENVIRONMENTAL SETBACKS
Planning Context
The purpose of an environmental setback between a sensitive feature such as a watercourse
and a proposed land development such as a building or land clearing is to provide a natural and
totally undisturbed area of separation between an environmental asset and a new
physical/structural change in the adjacent land use. Environmental setback areas can help
preserve the health of a watercourse, can help to minimize adjacent land runoff and pollution
releases, stabilize eroded streamside banks, and provide shade and nutrients for aquatic life.
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Policy Statements
5.2.1
All land development applications in the vicinity of waterbodies shall be undertaken in
conformity with the following policies of the Water Resources Management Division:
Policy for Development in Shore Water Areas, Policy for Development in Wetlands,
Policy for Infilling Bodies of Water and Policy for Flood Plain Management. Separation
distances wili' be set out in the Development Regulations for different developments ·
near waterbodies.
5.2.2
Except for water oriented industry and other business uses as approved by the Federal
Department of Fisheries and Oceans and the NL Department of Municipal Affairs and
Environment, all land development proposed to be located adjacent to the ocean shall
additionally maintain a minimum building elevation for habitable floor-space, and for
the placement of electrical services, at a minimum elevation of 2.5m above the high-
water mark of the ocean.
5.3
CLIMATE CHANGE AND FLOODING RISKS
Planning Context
Climate change for Cox's Cove is more than a global warming trend; it is about the potential
flooding risks, damage and loss to the community as a result the following indicative issues:
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Flooding risks to low lying local residential homes and businesses;
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Rising sea water level, storm surge and increased rainfalls impact on and damage to
community infrastructure of wharves, harbor amenities and facilities, Main Street
roadway and buried water and sewer infrastructure systems, and the Town's varied
culverts, ditches and storm water systems;
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Ongoing coastal foreshore areas erosion;
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Increase of intense storms and extreme weather incidents resulting in flooding, slope
slippage to Highway 440 and winter road travel restrictions;
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Interruption of vehicle access to Corner Brook;
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Lack of snow melt leading to low supply levels for municipal water;
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Varied locations exhibiting vulnerability to forest fire interface risks;
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Emergency preparedness of the local fire department and emergency responders; and,
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The dependency on external transportation carriers to regularly bring local food
supplies.
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The geographically detached location of Cox's Cove, its singular road access to and from the
community, the area's forest lands, Cox's Brook location bisecting the community and the
Town's proximity to the ocean accentuates these local climate change risks. New calculations,
based on recent data from the accelerating pace of snow cap melting, indicates that by the year
2100, the sea level will likely rise between 0.9m and 1.6m. This projected sea level rise,
accompanied by possible high tfde storm surges of over 2.0m, may have significant impacts to
the lower lying areas of the Town adjacent to the waterfront portion of Main Street. To manage
these emerging community issues, there is a need to take a comprehensive approach of
identifying and mapping local risks, assessing their likelihood of occurrence and probable
consequences and impacts, and establishing an action framework to mitigate, prioritize and
address the risks.
Planning Context: Flood Risks and Influence of Climate Change
While flooding of the beachfront by water overtopping the foreshore breakwater rubble,
ongoing erosion and impacts to buried sewer and water pipes adjacent to the ocean may
continue to occur during storms, major significant flooding events within Cox's Cove, as
identified by Environment Canada, have previously occurred in two areas of the community,
along Cox's Brook and at the beachfront, noted as follows:
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A storm in late November, 1955 produced heavy rainfall of 30 to 40 millimeters over a
24-hour period, strong winds and high sea levels and resulted in boats losing their
moorings and being washed up on the rocks;
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Twenty-two years later, in mid-December, 1977, a storm at time of high tide caused sea
waves to go over the breakwater and overflow Cox's Brook, resulting in widespread
flooding and causing damage to Main Street and local homes.
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A storm on December 2016 which produced heavy rainfall, strong winds and high sea
levels causing damage to the cribbing along the roadside which had washed away and
the. outfall for the sewage line had water coming up through the manhole.
The storms illustrate that foreshore flooding is most likely to occur again in the future during
periods of high sea levels, large waves and strong northeast onshore winds. Flooding within
Cox's Brook and its adjacent wetland and marshy bog area will likely happen again when large
freshwater discharges flow into the watercourse at the same time when high sea levels cause
overflow into Cox's Brook.
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The accelerating influences of climate change further indicate that more frequent storm events
of increasing intensity of storm surges from the approximate 5 km of fetch area of the local sea
and river flooding will continue to impact coastal communities like Cox's Cove in the future. The
flooding and high precipitation season for Cox's Cove is generally between November and
January each year when peak sea levels also occur. When heavy rainfall events during the
springtime result in significant snowmelt to Cox's Brook, and occur simultaneously with factors
of high tide, strong easterly winds and storm surges in the sea, the community is additionally
subjected to flood risks.
Because Cox's Brook bisects the community and since historic patterns of growth resulted in
many of the Town's existing homes being situated in low lying locations, the risks of flooding
and climate change to the community are amplified. The potential impacts to the community
from a significant flooding include economic loss and costs, public safety risks and social effects
to local residents and businesses.
As a result of previous studies and review of local flood risks, a flood risk zone map has been
produced to identify land areas within the Town that would be affected by the storm events.
Direct areas of concern of flood risks for Cox's Cove include:
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Property damage to the approximate 50 homes located on the central area of Main
Street and the lower reaches of Hillview Drive, and housing situated within the flood
zone of Cox's Brook and/or at other low-lying elevations to the waters of Middle Arm;
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The aging demographics and social vulnerability of individuals living within the high
flood risk zone;
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Impacts to municipal infrastructure of sewer and water services primarily located under
Main Street, erosion of road pavement, damage to culverts, bridge crossing of Cox's
Brook;
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Possibility of southern portion of the community being severed as a result of flooding
on Main Street;
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Potential business losses to local convenience stores situated on Main Street;
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Unknown potential effects to local fish plant;
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Impacts to Main Street fish shacks and boats, and to waterfront facilities within the
harbor;
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Slope failure and slippage of steep slope lands adjacent to Highway 440 leading into the
community, with potential for vehicular access and communication service to the
community being impaired;
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Physical loss of buildings, financial loss of individuals and uninsured losses; and,
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Recent international Intergovernmental Panel on Climate Change predictions and Dr.
Norm Catto of Memorial University observations for an increasing trend in sea level
rise.
In the previous analysis of flood risks to Cox's Cove, the Province has identified flooding
probabilities and impacts to the community based upon a 1 in 20-year storm and a 1 in 100-year
storm event. The 1989 Flood Risk Report for Cox's Cove suggested varied remedial strategies
that could be pursued to minimize the probability, vulnerability and severity of potential
impacts of flooding to the Town, noted in part as:
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Diking the banks of Cox's Brook;
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Elevation of Main Street for approximately 200 meters along the waterfront;
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The construction of a sea wall;
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Relocate high flood risk located residential homes;
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Flood-proofing existing homes located within flood zone;
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Government purchasing of flood risk residential homes; and,
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Land use zoning provisions to minimize risk of exposure to flood damage and loss.
Policy Statements
5.3.1
Support the Flood Risk Zones identified by the provincial Water Resource Management
Division by including these 1 in 20-year and 1 in 100-year flood areas as an Overlay on
the Future Land Use Map of the Municipal Plan and the Land Use zoning map of the
Development Regulations. All new residential, commercial and other active land use
forms of development shall be restricted within that Flood Risk Zone as identified by
the Canada- Newfoundland Flood Information Map for Cox's Cove, as attached as
Schedule 1 to the Municipal Plan. The 1 in 20-year and 1 in 100 -year flood risk zones for
the Town of Cox's Cove designated by the Government of Newfoundland and Labrador
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have been incorporated in the municipal plan and are shown on the Future Land Use
Map (as an overlay).
5.3.2
Land uses in the zones which fall within the above-noted Flood Risk Overlay area on the
Future Land Use map and the Development Regulations Land Use zoning map will be
limited to those allowed under the Water Resource Management Division policy set out
in the "Policy for Flood Plain Management". This will be further outlined in the
Development Regulations. For example, in the 1 in 20-year flood zone - residential and
institutional uses are not permitted, industrial and tourism related commercial uses
(except for hotels and motels) may be permitted provided ground floor elevation is
appropriate, the structure shall not negatively impact flooding, the buildings are
appropriately flood proofed and that the use does not involve storage of pollutants and
1 in 100-year flood zone - in addition to above, residential uses may be permitted but
institutional uses are not permitted.
Despite uses that may be permitted or discretionary in the future land use designation
and zone, uses will be restricted to those consistent with this provincial policy.
In addition, the following requirement applies to new residential development: The
living area for the house must be constructed at a minimum of 0.6 m above the
estimated 1 in 100-year flood elevation or climate change flood elevation of the area
5.3.3
Prepare a community resources and facilities inventory, including local volunteer and
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social services individuals and organizations, equipment and supplies, and specialized
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expertise to enable an effective response to a local emergency or disaster event, and
identify where deficiencies exist.
5.3.5
Identify the most vulnerable members of the community to unforeseen natural events
such as the elderly, disabled persons, and single parent families, and prepare an action
plan to assist these residents.
5.3.6
Pursue emergency preparedness partnerships and potential advice and assistance with
varied external organizations and government departments such as NL Hydro, Ministry
of Transportation and Highways, Canadian Red Cross, Public Safety Canada, RCMP,
Canadian Coast Guard and other emergency response agencies.
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5.3.7
Pursue energy efficiency, wherever viable, with all new construction; conduct an energy
audit of the municipal hall and fire department building and implement cost savings
measures where feasible.
5.3.8
Refer any development applications that occur within the Flood zone overlays (1 in 20-
year and 1 in 100-year) to the Water Resources Management Division for review and
approval prior to processing any application. ·Note that any infilling within 15 m of the 1
in 100-year food zone requires a permit from the Water Resources Management
Division.
5.3.9
Consider the preparation of a local Climate Change Adaptation Strategy to address
flooding, forest fire interface, water supply, food security, singular vehicular access to
the community and other potential risks as a result of Climate Change considerations.
5.3.10 Advocate a working partnership with the NL Department of Municipal Affairs and
Environment to review and address local flood risks;
5.3.11 Minimize future development within high flood risk locations; and,
5.3.12 Encourage the work of the Harbour Authority rega rding the establishment of a small
boat basin.
5.3.13 The following requirement applies to new residential development: The living area for
the house must be constructed at a minimum of 0.6 m above the estimated 1 in 100-
year flood elevation or climate change flood elevation of the area.
Other considerations:
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The Town will consider an enhanced working partnership with the NL Department of
Municipal Affairs and Environment to assist the community to review and address local
flood risks of Cox's Brook and from the ocean waters of Middle Arm.
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The Town may evaluate the viability and cost of preparing a Climate Change Adaptation
Strategy for the community to update the preferred management approach for flood risks,
forest fire interface risks, food security questions, the singular road access to the community
and other potential risk factors as a result of the emerging effects of climate change.
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The Town may consider the pursuit of specific capital improvement projects such as
construction of a seawall to address the community's vulnerable locations to flooding risks
which could be undertaken jointly with the Harbour Authority.
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The Town may explore an update the community's emergency plan through the local fire
department that will address a coordinated response to effectively manage the varied local
risks posed by potential climate change effects, and identify and map those locations, roads
and facilities/ infrastructure in the community that are most susceptible to sea level rise,
storm surges and flooding, and other natural events.
5.4
VISUAL ENVIRONMENT
Planning Context
Through the initial community site visit reviews, it was observed that there is varied litter, debris
and poorly maintained properties in specific parts of the community. These circumstances
contrast with local pride shown by many other residents in the upkeep and care of the visual
environment. Beyond individual property blemishes, there are land use planning opportunities
to enhance the physical appearance and sense of place of the community through capital
improvement projects in strategic locations of the Town and through implementation of
landscape and site design guidelines for new higher density residential and commercial,
industrial, and other land use development proposals.
While it is recognized that opportunities for landscape plantings are limited due to local
conditions of exposed areas to the ocean, and with salt laden air, windy conditions and minimal
soil cover, use of native species and stone structures to provide protection from the elements,
will provide a setting for possible enhanced greening of the community.
Maintaining the forested hillsides of the three arms (fjords) of Middle Arm in their natural state
is be a priority visual environment goal of the community.
Policy Statements
5.4.1
The Town shall review future land development proposals, in part, from the perspective
of impact and benefit to the natural and visual environment. Where deemed necessary
on land development sites where tree removal has occurred, tree replanting may apply.
5.4.2
Council shall consider an approach of identifying private properties and road rights of
way where unsightly litter and debris exist, and where abandoned and derelict
automobile vehicles are located, and pursue remedial actions of clean-up.
5.4.3
Initiatives of maintaining a high standard of appearance of property and buildings,
particularly at strategic Town locations such as the intersection of Hillview Drive and
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Main Street, and within prominent visitor locations such as along the waterfront and
within the municipal park site at Cox's Point shall be pursued.
5.4.4
Explore local school age children involvement with nationally sponsored and funded
community clean-up programs such as the annual Great Canadian Shoreline Cleanup.
Strategic physical improvements such as shoreline cleanups can make an immediate and
visible community impact.
5.4.5
Provide for general site and building design guidelines for development in the
Development Regulations.
5.4.6
Landscape improvements for specific higher density residential uses and for
commercial, industrial and other site development projects as determined by Council,
shall include local species plantings that are wind tolerant. Suitable landscape plantings
include small caliper shrubbery plantings of local roses, pruned alders, and ground
juniper, white spruce and willow. In locations that are not as exposed to the wind, and
are more sheltered, white spruce, birch, maples, cherry and roses may be appropriate.
Wherever feasible, rather than relying on nursery stock, local plants should be small and
rescued from plantings that are acclimatized.
5.4.7
Consider a process to pursue the viability and potential of achieving a professional
historical mural painting on the building sides of the fish processing plant structure, as a
way to illustrate the community's deep connection to the fishing industry and to local
forestry, as a tourism visitor attraction.
5.5
ENVIRONMENTAL PARTNERSHIPS
Planning Context
The Town of Cox's Cove places a high value on environmental values. However, the Town has
limited financial and staffing resources to solely pursue and implement environmental
management change. By reaching out to external agencies and organizations, and funding
programs, the Town may realize enhanced success.
Policy Statements
5.5.1
Approach Nu-Mink Farms, Service NL, and the Department of Municipal Affairs and
Environment to conduct a site vi~it to observe water runoff ditches and effluent flow
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from the Nu-Mink operation to the waters of Frenchman Creek, and cooperatively
discuss options to remediate potential effluent discharges to the watercourse.
5.5.2
Explore the potential formation of a local 'ride-share' program from Cox's Cove to the
Corner Brook area to reduce the number of single vehicle daily commuter work trips to
the Corner Brook area, and to provide transportation options for seniors living in the
community.
Other considerations:
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Invite representatives of the NL Department of Municipal Affairs and Environment, and
from the Federal Department of Fisheries and Oceans, to meet with Council, and other
interested community residents, and to discuss environmental 'best management
practices', flood zone considerations and potential climate change implications for Cox's
Cove
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Invite representatives from the Water Resources Branch of the Province of NL to discuss
the Town's water supply, watershed protection area and municipal servicing issues.
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Consider the preparation of Habitat Conservation Plan for Cox's Brook between the Town
and the Province and encourage the formation and participation of local stewardship and
environment groups in this and other similar environmental protection initiatives.
5.6
ARCHAEOLOGICAL AND CULTURAL RESOURCES
Planning Context
The value of historic, cultural and archaeological resources to Cox's Cove is significant. The
presence of existing Paleoeskimo archaeological evidence within the Sammy's Beach location of
the Planning Area, and the history attached to the resettlement community of Brakes Cove,
presents challenges and opportunities for potential future growth and development of the local
tourism sector. The primary need to preserve, protect and accentuate the value of these local
assets is to develop a Resource Management Plan.
While not specifically an environmentally sensitive feature, local archaeological and cultural
resources represent historic sensitivities to be protected, managed and preserved. The policy
approach shall be one of consultation with local residents and the Provincial Archaeology Office
of the Department of Tourism, Culture and Recreation. In particular, any development proposals
in these areas that involve significant excavation, including aggregate operations, and or forestry
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activities, shall be referred to the Province for potential field investigation prior to the
commencement of any site work. For other significant developments within the community,
conservation with the Provincial Archaeology Department should also occur.
Policy Statements
5.6.1
Investigate funding opportunities to prepare a Resource Management Plan as a means
to identify and pursue realization of enhanced cultural opportunities associated with
Brakes Cove and tourism potential with Sammy's Beach.
5.6.2
Invite representatives of the Provincial Archaeology Office to provide a presentation on
community archaeology management to Town Council and other interested members of
the community such as the local Heritage Committee.
5.6.3
Formalize a Town statement of encouraging local residents to be cognizant of any
archaeological artifacts when excavating land and in pursuit of other activities.
5.6.4
All land application permits for development as determined by the Town that propose
to involve major ground disturbance and significant excavation or lot grading, including
aggregate operations, shall be referred to the Provincial Archaeology Office of the NL
Department of Tourism, Culture and Recreation for review, comment and approval.
5.6.5
Any archaeological artifacts that are found are to be reported to the Provincial
Archaeology Office of the NL Department of Tourism, Culture and Recreation.
5.6.6
Continue support to the local Heritage Committee, and local Church groups, including
preservation of local cemeteries through a Public Use land use designation.
5.6.7
Consider the preparation of a historic pioneers' street naming list as a way to name new
streets and park-sites in commemoration of the contribution of past residents of the
community.
5.6.8
Determine the feasibility of designating valued local historic buildings and places as
heritage.
5.6.9
Protect the identified archaeological site at Brake's Cove as required under the Historic
Resources Act by consulting with the Provincial Archaeology Office regarding any
request for activities within a 20 m radius of the site.
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6.0
RESIDENTIAL LAND USE
6.1
OVERVIEW
The 2011 Census identified that there was a total of 318 private occupied residential dwellings
in Cox's Cove. The majority of housing units are single detached homes. Over the five-year
period from 2006 to 2011, the Town issued an average of two to three new residential home
building permits per year. New residential homes indicate investment confidence in the
community.
Typically, a Municipal Plan will forecast how much land area will be required within the
community over the next ten years and beyond to support a specific or projected level of future
population growth and housing development within the community. At a typical sustainable
development average residential density of five to six residential lots per 0.4 hectares of
serviced residential land. At current rates of residential development, the Town will require
approximately 2.4 hectares of serviced land over the next ten-year period to provide for
approximately two to three new homes per year.
The question is then to identify the most appropriate location (s), building types, densities and
development standards that should be established to guide projected new residential
development.
The Residential designation of the Municipal Plan shall apply to all those locations of the
community where residential use is deemed to be the highest and best use of the land
Efficient Use of Land Supply
Given the limitations of a relatively small water and sewer serviced area within the Town, the
Municipal Plan approach shall be to focus on an efficient use of the remaining land base to
provide for future residential development demand.
The Municipal Plan objective is to encourage, diversify and manage future residential growth in
a coordinated, safe and orderly fashion. To achieve this objective, varied zones and
development standards will be set out in the Development Regulations to allow different
residential lot sizes for both serviced and non-serviced residential lots, different housing types
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and densities. Infill residential development in the existing built up area is preferred over the
extension of municipal services for new growth so as to minimize the extent of municipal
infrastructure that will be subsequently be required to be maintained by the Town. It is
recognized that existing development presents a challenge to realize infill opportunities;
however, the Development Regulations will set standards to facilitate infill development as a
discretionary use in these historically built-up areas.
Infill Residential Development
When the needs of seniors in the community and the trends of retirees relocating to the area
are additionally considered, and a more diverse form of housing is recognized as required to
support local tourism and future affordable housing rental units, there is merit in considering a
comprehensive yet streamlined approach to promote residential choices within the Town's new
Municipal Plan. Housing approach shall be based upon a strategy of residential infill within land
areas that are currently serviced by existing water and sewer services. This will entail
consideration of a smaller lot size in the established developed urban area, garden suites, and
subsidiary apartments within single detached dwelling residential homes.
Varied Residential development standards
For the Residential designated land areas of the Municipal Plan's Future Land Use map, the
Development Regulations will set out development standards for Rural Residential and
Residential Serviced Area providing a variety of residential uses as the means to implement a
new housing direction for the community, including infill (small lot) development standards in
the Residential Serviced Area and including higher density residential developments as
discretionary uses. Proposals seeking to utilize these uses will be required to make application
to the Town for Council's review and where necessary, consideration of an amendment to
rezone a property for such new residential uses.
Comprehensive Development Areas
Longer range future residential growth may be planned to occur within designated locations
known as Comprehensive Development Areas {CDA). These locations are designated on the
basis of the future possibility of servicing.such lands with water a.nd sewer service, and where
sufficient acreage amounts of land exist to provide for future residential development
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opportunity; however, it is premature to determine whether the servicing will be a prerequisite
for development.
Land development within such CDAs should not be pursued until pent-up local demand is
sufficient to rationalize the resultant increased municipal costs for infrastructure extensions and
subsequent ongoing maintenance, operating and capital upgrade and replacement expenditures
attributed to the new homes and infrastructure of roads, water, sewer, refuse, fire protection,
recreation, policing and potential schools.
The Town of Cox's Cove should adopt a residential strategy approach of encouraging varied
types of new infill and subdivision development with single detached housing, attached two unit
dwellings and diverse forms of higher density residential housing to provide for affordability and
the emerging housing needs of seniors, and where the majority of new residential growth is to
only occur on properties serviced with existing infrastructure and capacity of municipal water
and sewer; extensions of municipal infrastructure to service new residential homes shall only be
considered on the basis of a significant number of new residential homes to be built and on the
basis that the developer paying for the financial cost of the offsite infrastructure extensions for
water and sewer servicing, and building new and/or upgraded roads.
6.2
RESIDENTIAL POLICIES
Policy Statements
6.2.1
The Future Land Use Map will show locations for the following residential designations:
Residential Rural and Residential Serviced.
6.2.1.1
Residential Rural designation which will permit residential development in
areas where the provision of municipal services is prohibitive;
6.2.1.2
Permitted uses in the Residential Rural zone include: Single detached dwelling,
Semi-detached Dwelling, Group Home, Subsidiary apartment, Urban
agriculture and Uses allowed in all zones which includes development
associated with public infrastructure and services, Conservation or open space
uses and lands set aside for environmental protection purposes, and Mineral
explpration not classed as '[?evelopment'.
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6.2.1.3
Discretionary uses in the Residential Rural zone include: Convenience store,
Outdoor Market, Retail, Public Gathering Places-Indoor and Garden Suite,
Home business.
6.2.1.4
Where residential (or cottage development) is not connected to the municipal
water supply, such development must be in compliance with provincial
"Groundwater Supply Assessment and Reporting Guidelines for Subdivision
Serviced by Individual Private Wells" which identifies the level of groundwater
assessment studies required depending upon the size of the subdivision,
starting from 1-4 lots and larger. The details of these requirements can be
found at the following link:
https://www.mae.gov.nl.ca/waterres/regulations/appforms/unserviced subdi
vision gw assessment guidelines dwh revisions.pdf
6.2.1.5 Residential Serviced designation which includes primarily single detached
dwellings, semi-detached dwelling, group homes but also allows for higher density
uses; Permitted uses will include single detached dwellings, Semi-detached
dwellings, Group Homes, and Uses allowed in all zones such as development
associated with public infrastructure and services, Conservation or open space
uses and lands set aside for environmental protection purposes, and mineral
exploration not classed as 'development'; higher density residential development
is reflected in the Discretionary uses, including, Garden Suites, multi-unit buildings
such as apartments and townhomes. Non-residential discretionary uses include:
urban agriculture, convenience store, Home business.
6.2.1.6 The Development Regulations will provide development standards for varied
residential housing types for:
- "Standard new serviced residential lot size;
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Rural Residential development in un-serviced areas of the Town, including
v large lot single detached dwelling housing with accessory agricultural use;
. __,, Semi-detached dwelling lot;
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.;.Higher density residential uses of three or more residential units, an
apartment or a highly designed ground-oriented townhouse use for
application will be discretionary uses in the Residential-Serviced zone in the
Development Regulations;
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On a single detached dwelling site, allow a Garden Suite {Secondary
detached residential unit} for tourism, elderly care and affordable rental
units.
6.2.2
Establish within the Development Regulations house siting and other requirements on a
residential lot to include:
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Minimum front, rear and side yard setbacks to property lines;
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Staggered frontyard setbacks ranging from 5 m to 7 m;
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Maximum building height;
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Maximum lot coverage;
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Height, size, and setback provisions, including a staggered setback;
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Standards for accessory buildings on each residential lot; and,
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onsite parking;
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Accessory uses and buildings; and,
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Home-business uses
6.2.3
Council may additionally consider the infill development of underutilized backyard
lands of properties through development of panhandle lots {backlots}, based upon
minimum standards of lot size area where the lot must be a minimum of 670 m2,
panhandle driveway construction requirements to emergency fire vehicle needs,
private property ownership and maintenance responsibility for the driveway, and
siting with respect to adjacent properties, as generally shown by the attached sketch,
and as further identified within the Development Regulations:
-
Typical Lot Configuration and Shape of Panhandle Lot
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6.2.4 Council shall support the development of subsidiary apartments, bed and breakfast
operations and home-based businesses within existing and new single detached
dwellings, in accordance with the outlined requirements of the Development
Regulations.
6.2.5 To provide for open space and parks in new residential areas, the Town shall implement
the Section 37 - 'Dedication of Land for Public Use' of the Urban and Rural Planning Act,
2000 as a means to acquire land for park land or other public use, or equivalent monies,
from a new development at time of subdivision.
6.2.6 All proposals for future mobile home or modular home residential dwellings shall be
only be considered at the discretion of Council within a mobile home or modular home
park or subdivision, as approved by Council in accordance with the requirements of the
Development Regulations.
6.2.7 Support the siting of higher density residential buildings in locations near and adjacent
to existing central facilities of the Town, wherever feasible.
6.2.8 Provide for enhanced building and site design appearance of all future single detached
dwellings, semi-detached dwellings, three and four-unit dwellings, apartments and
townhouses through the design guidelines of the Development Regulations.
6.2.9 Allow for residential uses on the second storey and above in commercial and other non-
residential buildings as a means to provide mixed uses for commercial and other
development types. This could be a subsidiary apartment (s).
6.2.lOCouncil may allow for residential infill development in serviced areas is subject to the
following requirements:
a.
the type, scale, massing, and design of the development is generally
appropriate and consistent with the adjacent neighbourhood;
b. preservation of side/back/front yards for public safety requirements;
c.
adequate provision is made for light, privacy, and amenity.
d.
where a proposed development constitutes infill between existing
developments, Council may consider changes to the lot area, building
line setback, and frontage based on the land capability to accommodate
servicing requirements; and also ensure that the building line setback is
consistent with adjacent properties and the general area. The sideyards
and rearyard requirements can be exchanged for infill lots only where
the adjacent development has sufficient separation to ensure that the
primary buildings on each lot are a minimum of 4 m and maximum of 10
m apart;
e. must not compromise public safety, neighbouring services, or the
general amenity of the area.; and,
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minimum lot size must be 372 m2 with a minimum 12 m frontage.
6.3
SENIORS HOUSING
Policy Statements
6.3.1
Consider, in partnership with provincial and regional social service agencies, and
through federal housing study programs such as Affordability and Choice Today (i.e.
ACT), and in communication with local senior residents, initiatives to prepare a
community-based housing needs assessment and action strategy for seniors.
6.3.2
Encourage the use of proposed Garden Suites in the residential zones and subsidiary
apartments to provide choices for housing for local seniors;
6.3.3.
Consider in partnership with the local Seniors Committee, Church groups and other
community groups, a proposal to generate and secure market interest and potential
funding for development of a senior's care facility. New proposed housing for seniors
shall be generally encouraged to locate wherever feasible, in close walking proximity to
local convenience stores, post office, medical office and other community facilities.
6.3.4
Organize in concert with Provincial representatives, an annual information session for
local seniors to advise on available services and programs, contact names and
organizations, and answers to questions related to emerging seniors needs in the
community.
7.0
COMMERCIAL, TOURISM AND INDUSTRIAL
ECONOMIC GROWTH LAND USE
7.1
OVERVIEW
The planning direction for Cox's Cove seeks to maintain stability in the community, to enhance
local quality of life and to work towards strengthening the land use integrity of the Town.
Commercial, tourism and industrial economic growth represent tremendous challenge and
opportunity for the community to provide more varied shopping choices for local residents, to
increase the number of local tourism visits, to create expanded employment opportunities, to
diversify the land use assessment portfolio for the Town and to generate increased taxation
revenue for the municipality.
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Local Business Inventory
Economic and business growth in Cox's Cove is intimately linked to the size of the local
population, annual levels of tourism activity and the vitality of the two primary employers in the
community, the fish processing plant of Barry Seafoods and NuMink's large mink farming
operation. Preliminary community site visit review has identified a mixed inventory of
approximately 15 +/- additional local business locations representin·g convenience stores, a gas
bar, a Sears outlet, medical office, personal services, tourism accommodation and tour guides,
industrial trucking, roofing and_ equipment operators and government offices. During the past
five years, it is unknown how many local businesses have either closed or newly opened.
Consumer Spending Leakage
It appears that local residents meet the majority of retail shopping, personal services and
government office business needs through travel to the larger urban area of Corner Brook. In
this sense, there is likely significant local consumer spending leakage occurring. Outflow of local
consumer expenditures means lost opportunity for the community.
Economic Development Planning
Economic development planning in rural NL requires the same level of attention as land use
planning to achieve long term community success. While this Municipal Plan does not purport to
represent a comprehensive economic strategy for the community, consideration for expansion
of opportunities in the commercial, tourism and industrial sectors will be presented. As
important will be the need for the Town to additionally consider the preparation of a
commercial and industrial vacant and serviced lands inventory catalogue, perhaps in
conjunction with Crown Lands, to clearly identify the available property within the community
for business development. Being organized and proactive in encouraging economic growth will
be essential to future success.
As the community evolves and local population growth unfolds, the Town will position itself to
more effectively market local economic development opportunities and attract new businesses.
As important is the opportunity to allow the Municipal Plan policies and land use maps to
outline how the community may shape future expansion in the commercial sector.
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Vision for Downtown Core
From a land use planning perspective, there is merit in the community envisioning a future
central area for concentration of new commercial businesses in a manner similar to a downtown
core. This level of foresight will avoid the current trend of a scattering of commercial businesses
throughout the community. A future downtown will also help to define the heart of the
community and facilitate opportunity for higher d·ensities forms of housing and varied other
community amenities to be located adjacent to the primary commercial area of the community.
Policy direction will help to define the preferred location for a future downtown. The goal of this
level of planning attention of commercial development is not to overly restrictive with business
growth but to guide and nurture future growth in a manner that respects the character and
sense of place for Cox's Cove.
Tourism
Tourism business opportunities in the community have excellent future potential but this
success will be intimately linked to becoming more organized in the manner the Town presents
itself in welcoming and servicing visitors to the community. Varied local initiatives are required
to create a full tourism experience. Some considerations may include preparing a
comprehensive and professional designed tourism signage strategy, expanding local
opportunities for unique and meaningful visitor experiences, improving tourism amenities,
infrastructure and services, and implementing an improved marketing strategy that profiles the
attributes of Cox's Cove as a worthwhile and important destination community for visitors.
7.2
COMMERCIAL LAND USE
Planning Context
There is a priority planning need to address and improve wherever feasible the physical
environment, character, amenities and desired sense of place to live of Cox's Cove to retain
existing residents, to attract new residents, and to convey a positive and supportive community
climate to do business. The Town will be required to continuously achieve progress through
Council's annual infrastructure Capital Plan and through success with some of the softer
infrastructure initiatives outlined by the varied Municipal Plan policies. By continuing to be
resilient in managing and advancing the Town, primarily through ongoing dedicated volunteer
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hours and efforts, community stability and incremental population gains will lead to an
environment where commercial growth is sustainable.
The initial public comment process for the Municipal Plan identified a strong local desire for
expanded commercial shopping choices. While it is recognized that the community does not
possess the critical mass of population to support major retail stores such as those located in
Corner Brook, there are potential strategies available to approach future business growth in a
more focused fashion for possible expansion in the commercial sector.
For example, there is an apparent need to highlight the entrance features of the community
with a physical linkage to the waterfront through signage and visitor information, property
design and appearance, landscaping, hanging flower basket displays, and pedestrian walking
linkages, as indicative of local pride and confidence in the Town. First impressions of potential
new business investors in the community will be swayed by what they see and don't see during
their first visit and observations of Cox's Cove.
Through efforts to improve the sense of place of the community, there will exist opportunity to
work towards strategies to actively search out possible new business entities, such as a small
footprint food store, to locate in Cox's Cove.
The common goals of improving the physical dynamics of the community align to the need of
fostering increased communication, involvement and ongoing support with current local
business owners, including home-based businesses, to create a shared future vision for an
expanded commercial presence in the community.
Other considerations:
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The Town may explore the viability of appointing a Business Economic Advisory Committee
to Council on the basis of voluntary membership from varied local commercial, tourism,
home based and industrial businesses, and in accordance with a defined Terms of Reference
for the mandate of the Committee, to identify priorities for local business visitation and
assistance, retention, marketing, and promotion and to help initiate a business growth
strategy for the community.
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The Town may consider approaching the regional Rural Secretariat organizatio'n as the
provincial entity for deliverance of sustainable economic development to the Corner Brook
to Rocky Harbour Region to fund the preparation of a Consumer Spending Leakage Study
and Commercial Business Attraction Strategy for Cox's Cove, and to be subsequently used as
the model for other rural coastal communities to identify to what extent commercial
shopping dollars are leaving a community and to determine a methodology how to utilize
these financial resources as a means to attract targeted new businesses to locate in the
community. Upon potential success with such projects, the Town will be an informed
situation to direct market the community to preferred business uses to consider a location
in Cox's Cove.
Policy Statements
7.2.1 The Future Land Use Map will contain a Commercial designation on the Future Land Use
map, which will include the existing convenience store and similar commercial businesses
in the community. Correspondingly, a Commercial zone will be shown on the Land Use
zoning map of the Development Regulations. The Development Regulations will outline
development control requirements for commercial uses. Permitted Uses include -
Commercial Land Use Class (4.3): All Uses, EXCLUDING Amusement Park/Attraction,
Campgrounds, Resort, shopping centre; and Discretionary uses include: Apartment
building with commercial on main floor, Public Gathering - Indoor uses.
7.2.2 The Development Regulations will set out provisions for home-based businesses.
7.2.3 New commercial building and expansion shall be restricted within the flood risk overlay
area of Main Street adjacent to the waterfront, as shown on the Future Land Use Map.
Uses will be subject to the Water Resource Management Division Policy for Flood Plain
Management and requires a permit from the Water Resources Management Division.
7 .2.4 Commercial uses such as those related to tourism accommodation and servicing may be
less location focused, for example, Bed and Breakfast operations are allowed as a Home-
based business in the residential zones.
7.2.5 The Town shall consider focused dialogue with local home-based business persons to
ascertain their needs and how the Town may assist in home based small business growth,
and foster expansion as a local storefront location.
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7.2.6 Commercial uses, employment generating small businesses and potential accommodation
uses such as a hostel may be explored in concert with the current building owner, as
potential re-use opportunities within the former school building located on Country Road.
7.2.7 Commercial development design guidelines will be included in the Development
Regulations for new commercial projects so as to achieve a higher level of function and
streetscape a·ppearance of project site layout, parking and access locations, landscaping
provisions, building fa~ade and signage.
7.2.8 The Town shall strive to utilize expert volunteer human capital wherever feasible to assist
the Town in pursuing commercial development and varied other economic development
initiatives, through ongoing communication with local businesses and regional economic
development organizations, and association the business management in marketing
programs of the Corner Brook campus of the College of the North Atlantic, and with the
Masters in Business Administration graduate program at Memorial University of
Newfoundland.
7 .2.9 The Town shall consider an incremental approach of taking small steps that cumulatively
lead to tangible economic development improvements within the commercial, tourism
and industrial sectors so as to accentuate that positive progress is being made and that
visible 'change is occurring' within the community.
7.3
TOURISM DEVELOPMENT
Planning Context
The Town of Cox's Cove and local residents perform an outstanding role in organizing ongoing
community events and celebrations, and partaking in regional initiatives, to help showcase and
invite visitors the community. The Culture Committee, local seniors and youth, volunteer
musicians and other dedicated residents continually dedicate time to organize and be involved
with both summertime and winter fest social functions for the community.
From a tourism development context, the Town has, like many other rural coastal communities
of NL, an outstanding natural setting. Cox's Cove also possesses a small fishing community
waterfront ambiance, a detached forested wilderness feels and character, opportunities for
boat tours and guided fishing excursions, and an outstanding waterfall setting at the end of Falls
Road.
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The Town also possesses varied unique natural and cultural features such as:
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the geological formations of Pond Point;
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the opportunity to create a living village in the resettled former town of Brake's Cove;
and,
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the untapped archaeological history of Sammy's Beach.
In pursuit of a more sustainable and prosperous future, a critical determinant for Cox's Cove will
be to build upon these strengths and assets to further accentuate and expand its tourism
potential'.
Tourism Spending
The tourism market is very competitive throughout the world and on the west coast of
Newfoundland. Tourism brings spending dollars to a community and helps create opportunity
for local employment, increased investment and enhanced economic stability. Tourism also
increases the exposure and profile of a community and presents the opportunity to promote its
sense of place as a location to return to and perhaps someday to live.
For a community such as Cox's Cove to capture more tourism visitors, they need to ask several
questions, including "What makes a trip down the long winding road of Highway 440 to Cox's
Cove so special?" and "What will make visitors more comfortable when they arrive, help them
find what they are looking for and encourage them to stay longer?" Enhancing the tourism
experience, providing tourism services and amenities, and creating a positive first impression
are keys to successful tourism planning.
While the Town has expended considerable volunteer time to advance plans such as a proposed
vehicle turn-off and visitor information kiosk at a prominent view location off the highway as the
travelling public enters the community, the inventory of local tourism amenities, services and
experiences needs to be expanded and coordinated.
Tourism Marketing
When individuals research travel destinations today, they primarily look online_for activities and
experiences such as whale watching and kayaking first and general locations second. In other
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words, people are looking for experiences first and not specifically places. Yet the Town of Cox's
Cove does not have an online presence to either provide general information on the community,
or to inform and market to tourists what the primary local tourism lure is and why they should
visit the area. While tourism marketing is vital, product development will be the most important
factor of a local successful tourism industry in Cox's Cove.
A primary goal of tourism development for Cox's Cove is the opportunity to increase the amount
of economic activity in the community. This doesn't happen when visitors come to the
community, get out of their cars and take photographs of Middle Arm. It doesn't happen when
visitors take a drive to Falls Road and swim at the waterfalls, or when tourists take a stroll on the
beachfront at low tide. And it doesn't currently happen when visitors take the 15-minute hiking
trail to Brake's Cove.
To entice visitors to spend local dollars in Cox's Cove, the community needs to work towards the
establishment of places and local events for tourists to spend money. Over the longer term, the
Town needs to pursue an appropriate mix of artist displays in refurbished fish shacks on the
waterfront, shade and rest benches and washroom facilities on or near the waterfront, a local
cafe and restaurant, entertainment, retail and gift shops, and an increased number of
accommodation choices to complement the existing Island View Cabins.
To be sustainable, local tourism also needs to be focused on a period longer than the typical two
to three-month summer season; the local tourism focus needs to be on a minimum seven-
month season.
The Municipal Plan policy approach for tourism shall be to propose varied ways that the Town
may improve their tourism appeal and attraction and help realize an increased level of economic
activity from tourism.
Planning Policies
7.3.1
Invite representatives from the Department of Tourism, Culture and Recreation to
provide a presentation to Town Council, and other interested members of the
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community such as the Heritage Committee, on potential applicable programs, services
and expertise that may be available to the community.
7.3.2
In conjunction with potential funding partnership with the Atlantic Canada Opportunity
Agency or an alternate funding source such as from two primary employers in the
community, budget to engage external expertise to prepare a comprehensive tourism
marketing strategy, consisting of the following key elements:
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Coordinated community tourism signage strategy, including tourism information
display signage near the Highway 1 exit to Highway 440 (taking into
consideration the provincial Tourism Oriented Directional Sign system AND THE
Highway Sign Regulations under the Urban and Rural Planning Act, 2000);
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Innovative and creative community logo and brand to create a highly visible,
fresh and unique new advertising and marketing image for the community;
signage along provincial roads must conform with the provincial Highway Sign
Regulations; and,
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Production, launch and ongoing maintenance of a prominent website profile for
the community.
7.3.3
In partnership with other communities along Highway 440 {Meadows, Gillams and
Mclvers), identify regional transportation priorities to more effectively support area
tourism to the Department of Highways and Transportation. Improve the Highway
approach into Cox's Cove through a litter clean-up program, develop a more prominent
and appealing entrance signage to the community and pursue realization of the planned
vehicle pull-out and tourism kiosk location at the entrance to Cox's Cove.
7.3.4
Continue to organize and become active members with regional tourism planning
efforts to highlight Highway 440 communities as a tourism destination option within NL.
7.3.5
Continue involvement with Memorial University's Harris Centre and Grenfell College's
interdisciplinary research study work on the environmental history of the Humber
region as an opportunity to pursue the community tourism goal of creating a living
village in Brake's Cove.
7.3.6
Continue to support and promote small cruise boat visitor trips, tour boats and other
marine tourism business opportunities associated with the upgraded docking facility
operated by the Harbour Authority of Cox's Cove.
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7.3.7
Provide for supportive regulations within the Development Regulations to encourage
additional tourism accommodation in the community through bed/breakfast provisions
as a Home-based business in the residential zones, and provisions for motel
development in the commercial zone.
7.3.8
Consider opportunities for private property clean up, landscaping enhancements,
parking and directional signage improvements to the intersection of Main Street and
Hillview Drive as visitors enter the developed area of the community. Direct local visitors
through signage to locations that highlight the community, and ensure that such
locations, such as the park at the northwesterly end of Main Street and Falls Road to the
waterfalls are attractive, well maintained and welcoming to tourists.
7.3.9
Advance policy discussions for future proposals involving significant park, public space
and washroom facility presence to the waterfront area and create visitor interest
through facilitation of opportunity for seasonal and/or permanent re-use of existing fish
sheds for tourism shops for artists, local crafts, cafe and food items, and working
displays related to the local fishing industry as incubators to more permanent tourism
business expansion in the community.
7.3.10 Encourage and explore the viability for summer student employment support for an
expanded inventory of even more local tourism and special events, and visitor
experiences, to potentially include during the tourism season weekly community
dinners, musical entertainment, storytelling, artisans, annual summer road running
event from falls to foreshore, dory boat races, discover surfing days, guided kayaking
excursions, sailboat welcome weekends, and artists day at the waterfront.
7.3.11 Consider innovative opportunities to promote the community as a 'bike friendly'
through road line painting, rest stops and shade areas, and signage promotion of joint
use of the local road system for bicycles. Ascertain opportunity for summer bike rental
small business.
7.3.12 Continue to develop and maintain strong working relations, communication and needs
assessment with varied regional local tourism partners, boating and outdoor adventure
operators and organizations such as Paddle Canada and other diverse business interests
that may include potential future restaurant, accommodation, heritage and culture
business opportunities for the community.
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7.3.13 Maintain ongoing regional partnerships with the Regional Tourism Association and the
Newfoundland Destination Marketing Organization.
7.3.14 Explore opportunities with local retail and other businesses to record the Canada Postal
Code addresses of store customers during the tourism season to determine the extent
of the local tourism market and to record local tourism trends on an annual basis.
7.4
EMPLOYMENT GENERATING LAND USE
Planning Context
The Town's industrial and employment generating base is critically dependent on the stability of
the two primary employers in the Town, the local fish processing plant of Barry Seafoods Inc.,
and the Nu-Mink Inc. mink farming operation. Retention of varied diverse local businesses from
roofing contractors, tradespersons, equipment operators, construction firms, fishing and marine
owners and other employment generating operations also play an important role in the
economic base of the community. Ensuring that Highway 440 remains safe and convenient for
local workers and supply/services transportation access to Corner Brook and area represents a
further economic priority.
Barry Seafoods Inc. is part of the Barry Group Inc., a Corner Brook based major player in the
fishing industry. The Cox's Cove fish processing facility which has its origins in the early 1970s, is
located on a prominent Main Street waterfront location, and is one of eleven plants that the
company owns in NL. With demise of many fish processing plants throughout Atlantic Canada,
the continued operation of the local plant bodes well for continued stability within the
community.
The Nu-Mink farming operation is located on Country Road (and partially within municipal
boundaries) on an estimated 54-hectare site, 3.5 km to the southeast of the central part of the
Town. The mink rearing operation includes several buildings that house the mink, a compost
facility, other accessory structures and pasture lands. The farm produces approximately 20,000
mink kits annually and has an estimated workforce of up to 20 local persons.
It will strategic for the Town to arrange visitation tours of these local industries and hold annual
and ongoing information sessions with the principals of the firms so as to work cooperatively
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and successfully, and to facilitate support to address business requests and needs, to converse
on municipal objectives, and to discuss opportunities wherever feasible for enhanced
community partnerships.
It is acknowledged that as success in the Town's two largest employers has the potential to
result in enhanced local employment and industrial diversification opportunities for local supply
and servicing businesses, contractors and tradespersons.
Beyond the two primary local industries, and varied small businesses, there will be a need for
Municipal Plan policies to address the preferred municipal approach for forestry extraction
proposals, gravel extraction activities and for specific potential industrial resource uses such as
aquaculture.
Close to the Town, there are two recognized dolomite resources located at the eastern edge of
the Municipal Planning Area: the Penguin Hills deposit, located on the south side of the entrance
to Penguin Arm, and the Narrows deposit, located on the south side of the entrance to Goose
Arm. Delaney and Howse (1988, in Current Research), who conducted the study which assessed
these and other dolomite deposits in Newfoundland, estimated that the Penguin Hills deposit
consists of "more than 10 million tonnes" and the Narrows deposit "over 100 million tonnes".
To put these numbers into context, currently, on average, the province produces for export 1.1
million tonnes of metallurgical grade dolomite annually from the Atlantic Minerals Ltd. Lower
Cove mine on the Port au Port Peninsula. Only several dolomite deposits outside the Port au
Port Peninsula have estimated resources greater than 10 million tonnes (the two deposits
mentioned above near Cox's Cove, another at Deer Cove south of Hawkes Bay, another at Cape
Norman on the tip of the Northern Peninsula). The economic feasibility of dolomite mining for
export depends largely on transportation costs. For instance, dolomite is produced in western
Labrador for use locally in the iron ore pelletization process, however it would not be
economically feasible to export dolomite from the deep interior to external markets. While
there are no immediate plans to develop these resources, they do represent another source of
employment for the residents of Cox's Cove.
From a land use planning perspective, there is an additional need to identify, map and designate
a serviceable land inventory to provide for industrial growth and diversification of the local
economy, anticipated over the ten-year period of this Municipal Plan.
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Planning Policies
7.4.1
Lands used for local industry shall be designated as Industrial on the Future Land Use
Map of the Municipal Plan and correspondingly, as the Industrial zone on the Land Use
Zoning map of the Development Regulations. Permitted Uses include: Industrial -
General, Industrial - Light, Industrial - Mall, Fishery-related Use, Natural Resource-
related Industries, Protective and Emergency Services, and accessory uses and accessory
buildings; and Discretionary uses include: Energy Generation Facilities, Wind Turbine
Generator, Marina, Contractor- General, Composting Facility, Solid Waste -
Recycling/Disposal/Composting Site.
7.4.2
Establish annual meetings and maintain dialogue with the principals of the Barry
Seafoods Inc. fish processing plant and NuMink Inc. mink farm to foster a supportive
municipal working relationship with the two primary employers of the community.
7.4.3
Explore potential business expansion needs with both major employers of the
community, the fish plant and the mink farm, and share varied community projects that
may represent viable partnership funding opportunities for the local companies.
7.4.4
In discussions with NuMink Inc., arrange site visitation to become more familiar with the
operation, particularly waste management practices with respect to potential effluent
release to lands above Cox's Brook.
7.4.5
Coordinate future potential wharf facility and foreshore industrial expansion with local
Harbour Authority and the Department of Fisheries and Oceans.
7.4.6
Continue municipal efforts to construct a safe and secure dory boat basin to
accommodate the numerous local small dory craft currently situated along the
waterfront foreshore of the community.
7.4.7
Identify, map and catalogue in conjunction with Crown Lands all vacant and serviced
industrial potential sites, including property ownership details, as a means to market
and effectively respond to industrial development inquiries and opportunities.
7.4.8
Evaluate industrial expansion proposals adjacent to the waterfront from a public access
perspective. In particular, minimize the impact of new waterfront development limiting
public access to the waters of Middle Arm. Over the longer term, adopt a vision of
comprehensive public use and more mixed development of waterfront locations.
7.4.9
Manage future industrial non-waterfront-oriented proposals in a manner to achieve
effective property assessment values by including standards in the Development
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Regulations which will maximize building site coverage, minimize outside site storage
and provide guidelines to assist Council when reviewing proposed building, site and
landscaping design.
7.4.10 Integrate new industrial developments into the land use fabric of the community with
regard to the industrial operation interface with quality of life considerations ofthe
adjacent residential neighbourhoods through site planning, site development standards
and separation distances to adjacent land uses, and evaluation of proposal details such
as processing exhaust vent locations and night-time lighting.
7.4.11 Maintain varied accessory uses to industrial businesses, including related offices,
accessory showroom and retail sales, and in industrial buildings in excess of 929 m2,
provision for accessory residential within the principle building.
7.4.12 Forestry and mineral working proposals from the Province and other operators, while
licensed by the Province, shall be commented upon by the Town from the perspective of
maintaining the aesthetics and natural environment of the community, as further
defined by the requirements outlined within the Development Regulations;
7.4.13 Mineral exploration that is not development as defined under the Urban and Rural
Planning Act, 2000 is permitted throughout the Municipal Planning Area, as required by
the Mineral Lands Division; Mineral exploration that is development as defined under
the Urban and Rural Planning Act, 2000 is permitted in the Rural zone and as a
Discretionary use in the Conservation zone and the Protected Water Supply zone as
determined by the Water Resources Management Division, to comply with the direction
provided by the Mineral Lands Division.
7.4.14 Mineral Working, such as quarries shall be permitted in the Rural zone, and as a
Discretionary use in the Conservation zone and separation buffers shall be identified to
avoid conflicts between incompatible uses. The buffer can be reduced depending upon
the geography of the site and the nature of the proposed use and potential for negative
impacts on either the proposed use or the expansion of the mineral working operation.
7.4.15 Potential aquaculture site proposals for the waters of Middle Arm shall be closely
reviewed by the Town as part of the Environmental Assessment process for these types
of developments to ensure no environmental impact to the Town;
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7.4.16 Adopt an approach of siting hazardous industrial uses such as tank storage in locations
separated from residential areas, as determined by Council through a professional
engineer certification.
7.4.17 Encourage employment-generating activity in the residential zones by setting out Home
business opportunities and standards in the Development Regulations. Home businesses
are a discretionary use and must have a permit issued by Council. A Home busfness is a
subsidiary use of a dwelling or associated accessory building for commercial use
involving the provision or sale of goods and/or services without detracting from the
residential character of the neighbourhood in terms of traffic, or any other nuisance.
Examples may include:
1.
Professions: examples include but are not limited to, accountant, architect, auditor,
engineer, realtor, insurance agent, planner, lawyer;
2.
Personal service that do not disrupt the residential character of the neighbourhood
such as a hairdressing, tailor, photographer, pet groomer, caterer's establishment;
shoe repair, dressmaking, sewing repairs and tailor shop; small appliance,
clock/watch, bicycle, ski and snowboard and computer repair, locksmiths,
manicurists and insurance agents;
3.
Care services, such as child care, or home-care; and similar occupations or
businesses.
4. Artisan and other home crafts;
5.
Food preparation for catering services and baking;
6.
Bed and Breakfasts;
7.
Music and dance lessons and educational tutoring;
8.
Telephone and mail order business;
9.
Art gallery and framing shop;
10. Furniture repair and upholstery;
11. Sale of bedding plants and trees grown on the same lot;
7.5
COMPREHENSIVE DEVELOPMENT AREAS
Planning Context
Comprehensive Development Areas (CDA) are intended to represent 'reserve lands' for future
land development on the basis of Council approval of a Comprehensive development area plan
and applicable land use designation and rezoning for the area. The submitted site development
plan shall be prepared in accordance with sustainable development principles, in adherence to a
Terms of Reference for the area as defined by the Municipal Plan and by other criterion as
determined by the Town. The required site development plan submission may entail provision
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of supportive professional opinion and recommendations to Council by NL registered
geotechnical/ hydrologist/ civil engineers, biologists, arborists or similar qualified expertise.
The Municipal Plan has designated the following CDAs:
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The sloping lands situated above the existing residential homes located on Park Drive
and Bayview Drive; and,
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The foreshore and adjacent lands located to the general east of Cox's Rock; and the
sloping lands to Cox's Brook located to the general south of Country Road and opposite
the NuMink compost facility.
Other Comprehensive Development Areas may be considered for designation in the future on
Rural designated sloping lands on the west side of the Highway 440 entrance to the community.
Planning Policies
7.5.1
The Municipal Plan will show the following designated Comprehensive Development
Areas (CDA) on the Future Land Use map including the following locations of the
community:
-
The sloping lands above the existing residential homes located on Park Drive
and Bayview Drive;
-
The foreshore and adjacent lands to the general east of Cox's Rock and
located to the general north of Country Road and adjacent on the east to the
Nu Mink compost facility.
7.5.2
The future land use designations shall be deemed as reserve lands until a
comprehensive development proposal for the subject land is proposed significant local
population growth occurs, a significant lack of developable land within the existing
serviced area exists or a proposal of benefit to the community, as determined by Council
is presented to the Town. Land ownership for the subject lands shall be determined and
may entail coordination with Crown Lands.
7.5.3
The intended land use for the CDA lands shall be of a mixed use orientation wherein
residential, commercial, tourism and employment generating uses may be considered.
7.5.4
The preparation and submission to the Town of a comprehensive development
plan shall be required for CDA designated lands prior to consideration of the proposal by
Council and prior to any form or density of land use development being determined or
occurring. The land use development plan shall be based upon sustainable development
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principles and may entail provision of supportive professional opinion and
recommendations to Council by NL registered geotechnical/ hydrologist/ civil engineers,
biologists, arborists, or similar qualified expertise. All off site infrastructure deficiencies
and extension requirements shall be the sole financial responsibility of the development
proponent.
7.5.5
An environmental and archaeological assessment may additionally be required by
Council to identify which lands should be preserved and protected before determining
the developable area of any site. Conceptual advance street planning for potential new
municipal road routings, proposed road grades, storm water drainage and management,
and infrastructure servicing extensions and capacity requirements may also be required
to be submitted for review by the Town to ensure that municipal servicing can be
provided over the longer term in a sustainable and cost-effective manner. This
information is needed to undertake a cost/benefit analysis regarding the cost of
installing and maintaining infrastructure. This level of background site development
information is deemed as necessary prior to the Town considering an appropriate site
density and land use form for the proposed site development. This will authenticate that
the site development will be as economically viable as possible to the longer term
subsequent operational and maintenance requirements of the Town.
7.5.6
In recognition of the outstanding elevated views from the proposed CDA locations, the
Town intends to maintain a community vision for a high standard of land development.
Proposals for tree cutting and removal shall be closely evaluated, and tree/ vegetative
replanting may be required. Incremental site development of these locations is not
supported in a piecemeal fashion through fragmentation of the land base, as this form
of development will diminish opportunities for a comprehensive approach in the future.
7 .5. 7
The development of the CDAs should incorporate some of the principles from the Smart
Growth planning concept, such as:
a. Mix of land uses
b. Take advantage of compact building design.
c. Create walkable neighbourhoods and a range of housing opportunities and
choices
d.
Foster distinctive, attractive communities with a strong sense of place
e.
Preserve open space, farmland, natural beauty, and critical environmental areas
f.
Strengthen and direct development towards existing communities
g.
Make development decisions sustainable, predictable, fair, and cost effective
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8.0
RURAL LAND USE
8.1
OVERVIEW
Rural designated lands apply to those more detached, non-serviced and generally non-
populated sloping lands locations of the community situated to the west and east of the
Highway 440 entrance to the community, as well as those other lands of the Planning Area that
are not designated for Watershed Protection and/or Conservation uses.
The geography of these Rural designated lands is generally characterized by forested areas.
Intended land uses on Rural lands primarily relate to limited rural residential housing based
upon Council supported locations and approved on-site water and sewer disposal, potential
proposals for forestry and gravel extraction resource activities, recreational and hunting uses,
and domestic firewood cutting.
8.2
PLANNING POLICIES
8.2.1'
The Town's land use planning approach to the Rural designated lands shall be one of
preservation of the natural environment of the area in unison with consideration of
limited resource extraction operations on an individual application submission basis as
reviewed by Council for potential conditions of use and approval.
8.2.2
The Future Land Use map will contain an Rural designation which will be zoned Rural in
the Development Regulations which will set out the Permitted uses to include:
Commercial Agriculture, Forestry Activities, Mineral exploration-development, Mineral
Working, -Accessory uses and buildings; and Discretionary uses to include: Aquaculture,
Natural Resource-Related Uses, Industrial - General, Industrial, Heavy/Hazardous,
Cemetery, Campground, Contractor- General, Public Gathering - Outdoor, Amusement
Park/Attraction, Salvage/scrap yard, Cottage, Kennel, Resort, Marina, Wind turbine,
Residential: (1) Single detached dwelling only in association with a permitted use.
8.2.3
The Town shall detail mineral workings requirements within the Development
Regulations for gravel pit, aggregate and similar operations through utilization of
separation distances from adjacent land uses, tree retention and screening, fencing,
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preservation of water features, erosion control, site maintenance, road access,
secondary processing and manufacturing uses, and the termination of the mineral
operations and site rehabilitation.
8.2.4
Forest Management Plans and annual operating plans which contain details regarding
commercial and domestic harvesting and forest management activities, are to be
reviewed by the Town for comment upon the impact to the visual environment of the
community, the potential environmental, drainage and sedimentation impacts to local
watercourses and aquifers, and tree replanting and reforestation intent with the
extraction area.
8.2.5
All proposed land uses shall be encouraged to maintain the rural character and integrity
of the area with additional site-specific development requirements as identified and
required by Council upon proposal submission.
8.2.6
The Town will continue to support forestry activities, including the local practice of
domestic firewood cutting on Rural designated lands for personal use and as a small-
scale industrial activity, including on Crown lands as outlined in the relevant Forest
Management Plan.
8.2.7
8.2.8
The Town, through the fire department, will explore with the Province the support
available to conduct a forest fire interface and risk study for the rural designated lands.
Cottages are a Discretionary use in the Rural zone. Cottage subdivision development
may be considered by Council on the basis of a comprehensive environmental site
assessment, well water supply as approved by a professional hydrologist, a private
septic effluent disposal system as certified on site by a professional engineer, potential
offsite road upgrade improvements to an emergency vehicle standard, and other
requirements as identified by Council. If there is any cottage development which is not
connected to the municipal water supply, the applicant is required to be in compliance
with be provincial groundwater assessment requirements, refer to 6.2.1.4.
8.2.9
As condition of approval for the Planning Area boundary, the Forest Services Branch
requires that domestic harvesting and forestry management activities; such as,
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silviculture and road construction activities are permitted uses within the Domestic
Operating Area as identified in the Forest Management Plan, 2019-2023. The Domestic
Operating Areas are located in the Rural zone; therefore, these uses shall be Permitted
in the following zones: Rural, Conservation, Protected Water Supply, Agriculture; and a
Discretionary use in the Environmental Sensitive Area zone.
8.2.10 As condition of approval for the Planning Area boundary, the Forest Services Branch
requires that commercial harvesting activities are permitted on Corner Brook Pulp and
Paper timber licenced areas subject to Town approval within the Rural zone.
9.0
PUBLIC AND INSTITUTIONAL LAND USES:
PARKS, OPEN SPACE, COMMUNITY FACILITIES
9.1
OVERVIEW
Essential building blocks to a successful community include the amenities that enable local
residents to actively pursue recreation, to walk on natural trails, to attend functions at
community facilities, to attend church, and to be serviced with varied other public uses such as
Town Hall, the fire hall and local cemeteries.
As the Town of Cox's Cove is a small community, the following uses will be included under this
designation and zone category:
-
active park areas such as the local ball field and park space at the west end of Main
Street, as well as to future intended pedestrian walking trails such as along Cox's Brook
from Falls Road;
-
community facilities, such as, the Town Hall Building, the fire hall, the Marshall Moores
Arena and municipal infrastructure buildings; and,
-
local area churches and their adjacent cemetery areas, the seniors club building, as well
the former school building.
The planning intent is to facilitate the successful siting of these uses as integrated locations
throughout the community, and to advance the concept of active and healthy living
opportunities in recognition of the aging of the local population.
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9.2
PLANNING POLICIES
9.2.1 The Municipal Plan Future Land Use Map will designate Public/Institutional to encompass
community facilities, Town buildings and facilities, and developed Open Space, Parks and
Trails areas; the Development Regulations will contain a Public/Institutional zone on the
Land Use Zoning maps and will set out the following Permitted Uses: Institutional/Public
Uses (EXCEPT stand-alone Cemetery and Crematoria), Open Space, Park and Trails; and
Discretionary Uses: Club and lodge and Outdoor Market, Hostel, Restaurant-Mobile Take-
out and Vendor only.
9.2.2
The Public/Institutional zone shall apply to existing active parkland property, including
the ball fields, playing fields and recreation open space adjacent to the former school
located on Country Road, and the prominent view location park area of Cox's Point
located at the end of Main Street.
9.2.3
An elevated small bench area property located on the upper side of the Main Street
Bridge over Cox's Brook, and on the north side of Country Road, shall also be zoned
Public/Institutional for potential future community park use.
9.2.5
Park and recreational priorities for the community, in addition to walking trails, include
the following projects:
-
Upgrade of ball field, including new fencing and dugouts;
-
Additional equipment for playground;
-
Address water level at Municipal Park and provide for seating and rest area;
-
Potential technologic solution for extension of season for arena natural ice
surface;
-
Public space and visitor area improvements to Main Street waterfront.
9.2.6
The Provincial snowmobile trail that runs along the southern boundary of the
community is recognized and supported by the Town and is included as a permitted
recreation use within the Conservation and Rural use zones and a Discretionary use in
the Environmental Sensitive Area zone of the Development Regulations.
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9.2.7
The Public/Institutional zone shall apply to the Post Office and all municipal owned
buildings, including the Town Hall/community hall, the fire hall, arena, specific municipal
owned infrastructure buildings such as for the bio-swale, and for future municipal uses
such as the proposed tourist information kiosk and viewing area located adjacent to the
bio swale facility.
9.2.8
The Public/Institutional zone shall apply to the Anglican and Pentecostal Churches, two
cemeteries, the Golden Rainbow Seniors Club building, the former school building and
similar non-governmental structures and functions.
9.2.9
Future Community Facility and Public Use buildings and amenities are encouraged to be
sited in central locations that are easily accessed by all age groups, with or without
vehicular transport.
9.2.10 The site design, landscape treatment and interface of community facilities and public
use buildings shall be effectively integrated with the adjacent residential neighbourhood
through adherence to the general development design guidelines outlined within the
Development Regulations. All site parking requirements for future such buildings, as
calculated by the proposed occupancy load or square footage area of the applicable
building, shall be provided within the subject property.
9.2.11 Continue to pursue regional funding cooperation for improvements to recreational
amenities, senior's programs and community cultural projects, such as from the NL
Seniors Community Recreation Grant Program.
9.2.12 Consider opportunities to pursue corporate funding contributions for community parks
and recreation improvement projects from the Barry Group, and other local and
regional businesses, in exchange for business recognition, naming rights and/or
advertising, where deemed feasible; such indicative projects to corporately fund may
include potential expanded use of the arena past the ice hockey season, and design/
construction of one or more of the three proposed community pedestrian walking trails.
9.2.13 Explore the feasibility of a commemorative dedication and donation program for
parkland equipment, park improvements and installation of strategically located park
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space trees and rest benches in memory of local residents through commemorative
plaques.
9.2.14 The primary recreation objective for the community shall be to work towards active and
healthy living opportunities for residents by creating safe and well-maintained locations
for. local residents to walk and play.
9.2.15 The Town may consider a budget for preparation of a Parks and Recreation Needs
Assessment and Recreation Master Plan based upon current demographic trends, and
likely emerging needs for the future.
10.0 AGRICULTURE LAND USE
10.1
PLANNING CONTEXT
The Town has a diverse inventory of historic and current agricultural lands within the
community, primarily located along Country Road, and to a lesser extent on the easterly portion
of Main Street. Agriculture in the context of food security for Cox's Cove may be a long-term
community goal but within the short term, the greater challenge through the Municipal Plan
process is to identify and preserve lands with agricultural activity and capability.
While the Provincial Crown Lands' status on varied properties appears to complicate the legal
use of specific lands through former land lease grants based upon agriculture, there seems to be
no ready access to which lands within the community have actual lease stipulations that specify
properties are to be only used for agriculture, or other uses of land.
Given the apparent need for Crown Lands to work with the Town and to provide a mapping
inventory of identified lands within the Town's Planning Area Boundary that are subject to
agricultural and other land uses, the intent of the Municipal Plan in management of agricultural
lands is varied, noted as follows:
-
To designate existing lands with agricultural uses as Agricultural;
-
To enable the Development Regulations to provide for some accessory agricultural
uses; and,
-
To preserve other lands with soil capability and location attributes for agricultural use
through an agricultural designation.
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The Town may seek the assistance of the Agrifoods Development Branch of the NL
Department of Natural Resources to help identify potential additional agricultural lands
on the basis of soil capabilities, drainage and adjacent land uses
10.2
POLICY STATEMENTS
10.2.1 Lands with current and significant agricultural operations character shall be designated
on the Future Land Use Map for Agriculture and correspondingly, these lands will be
zoned Agriculture on the Land Use zoning map of the Development Regulations.
10.2.2 The Development Regulations shall identify Permitted uses on Agricultural lands
including Commercial Agriculture (including fur farm), and Discretionary Uses, including:
Outdoor Market, Mineral Exploration-development, Natural Resource-Related Uses,
Kennel, Residential: Single detached dwelling only in association with a permitted use.
10.2.3 The Town shall request Crown Lands to provide a mapping inventory of all lands located
within the Town's Planning Area Boundary with existing Crown Lands' leases and grants
for agricultural use. The Town shall support the continuation, and expansion where
feasible, of agricultural land use activities.
10.2.4 The Town will establish a 1.5 km radius Mink Farm buffer and will refer development
applications within the Mink Farm Buffer to the Land Resource Stewardship Division to
determine if there may be any conflicts between the proposed use and the continued
operation of the mink farm. The Provincial government and the owner have invested
substantially in this operation and detrimental activities can place devastating stress on
the mink. As well, the very intense bad smell from the waste generated by the
operation can be blown in any direction which compromises use and enjoyment of
development in the vicinity of the operation.
11.0
ENVIRONMENTAL PROTECTION LAND USE
11.1
PLANNING CONTEXT
The land use maps of the Municipal Plan will designate specific locations of the community as
lands to be protected and preserved where development is restricted due to the natural
features of the site for purposes of conservation or protection of habitat, wetlands, resource
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management, viewscapes or other special designations under legislation; or site unsuitability
due to erosion control, steep slopes, flood control and water supply protection. The Town of
Cox's Cove had a landslide in February of 1996 across the main road (Route 440) into the
community.
The Town has identified a primary environmental mapping priority for the community as the
wetlands and marsh area associated with the lower reaches of Cox's Brook. The Town has
further expressed the need to inventory and understand the ecological function of these
marshlands. Other wetlands within the Municipal Boundary area and additionally located within
the expanded Planning Area Boundary of Town also require assessment and protection.
On an individual property basis to ensure effective land use planning and comprehensive
environmental management, it is intended that each land use development proposal application
to the Town clearly identify any sensitive environmental features on a proposed development
site. Where such sensitive features such as watercourses or flood zones exist, such locations are
to be deemed non-developable and are not intended to be considered as part of the
developable area of the property.
For specific land development sites, a property owner seeking land development approval from
the Town may be requested by Council as part ofthe development application consideration to
engage and pay for the cost of a certified and registered professional biologist to confirm the
area extent of sensitive features on the site. These considerations may include an evaluation of
the build-ability of sloping lands or land with questionable soil stability by a registered
geotechnical engineer, or the need for an applicant to engage a professional biologist to provide
a written opinion with recommendations to Council on the sensitive environmental features of a
site. Other instances where outside expert opinion may be requested by Council may include
proposals that seek to apply for a variance from the Development Regulations for building siting
relaxation adjacent to a water body.
Over the ten-year timeframe of the Municipal Plan, these map designation areas may be refined
for further land protection, including through consultation with external organizations such as
the Provincial Department of Municipal Affairs and Environment.
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11.2
POLICY STATEMENTS
11.2.1 The Municipal Plan will designate a Conservation areas on the Future Land Use map for
the purpose of conserving valued viewscape and archaeological and cultural resources,
and areas with steep slopes (in excess of 15%) that may be vulnerable to geological
hazards; the associated Conservation zone will set out in the Land Us.e zoning map of
the Development Regulations. These areas include important community view scape
locations and other valued local lands for similar protection from land development.
Permitted Uses will include: Conservation use'Yclnd Forestry; and Discretionary uses
include Mineral Working, Mineral exploration-development, Accessory uses and
Accessory buildings. Note that the Development Regulations will indicate that
motorized trails for all terrain vehicle or snowmobile use will be a discretionary use.
11.2.2 The Municipal Plan will designate Environmental Sensitive areas on the Future Land Use
map for the purpose of protecting wetlands and waterbodies; a corresponding
Environmental Sensitive Area zone will be included on the Land Use zoning map of the
Development Regulations. Permitted Uses will include: Environmental Protection uses,
Open Space, Parks and Trails (note that motorized trai-ls for all terrain vehicle or
snowmobile use will be a discretionary use; however, the existing snowmobile trail, if
legally approved, will continue as a legally non-conforming use - refer to section 1.5),
uses associated with scientific research into site sensitivity; and Discretionary uses will
include: Mineral exploration-development, Outdoor Market, Restaurant-mobile take-
out and street vendor only, Forestry;
11.2.3 The Environmental Sensitive zone will also accommodate the appropriate sections of
the three proposed pedestrian walking trail initiatives, noted as follows:
-
A seacoast trail from the north end of the community to the south, commencing
near Parkes Cove and ending at the park area of Cox's Point at the end of Main
Street;
-
An approximate 2 (two) km trail from the Main Street park to access Brake's Cove,
and with an additional link to the Sammy's Beach archaeological site. Trail
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management, viewscapes or other special designations under legislation; or site unsuitability
due to erosion control, steep slopes, flood control and water supply protection. The Town of
Cox's Cove had a landslide in February of 1996 across the main road (Route 440) into the
community.
The Town has identified a primary environmental mapping priority for the community as the
wetlands and marsh area associated with the lower reaches of Cox's Brook. The Town has
further expressed the need to inventory and understand the ecological function of these
marshlands. Other wetlands within the Municipal Boundary area and additionally located within
the expanded Planning Area Boundary of Town also require assessment and protection.
On an individual property basis to ensure effective land use planning and comprehensive
environmental management, it is intended that each land use development proposal application
to the Town clearly identify any sensitive environmental features on a proposed development
site. Where such sensitive features such as watercourses or flood zones exist, such locations are
to be deemed non-developable and are not intended to be considered as part of the
developable area of the property.
For specific land development sites, a property owner seeking land development approval from
the Town may be requested by Council as part of the development application consideration to
engage and pay for the cost of a certified and registered professional biologist to confirm the
area extent of sensitive features on the site. These considerations may include an evaluation of
the build-ability of sloping lands or land with questionable soil stability by a registered
geotechnical engineer, or the need for an applicant to engage a professional biologist to provide
a written opinion with recommendations to Council on the sensitive environmental features of a
site. Other instances where outside expert opinion may be requested by Council may include
proposals that seek to apply for a variance from the Development Regulations for building siting
relaxation adjacent to a water body.
Over the ten-year timeframe of the Municipal Plan, these map designation areas may be refined
for further land protection, including through consultation with external organizations such as
the Provincial Department of Municipal Affairs and Environment.
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11.2
POLICY STATEMENTS
11.2.1 The Municipal Plan will designate a Conservation areas on the Future Land Use map for
the purpose of conserving valued viewscape and archaeological and cultural resources,
and areas with steep slopes (in excess of 15%) that may be vulnerable to geological
hazards; the associated Conservation zone will set out in the Land Use zoning map of
the Development Regulations. These areas include important community view scape
locations and other valued local lands for similar protection from land development.
Permitted Uses will include: Conservation uses and Forestry; and Discretionary uses
include Mineral Working, Mineral exploration-development, Accessory uses and
Accessory buildings. Note that the Development Regulations will indicate that
motorized trails for all terrain vehicle or snowmobile use will be a discretionary use.
11.2.2 The Municipal Plan will designate Environmental Sensitive areas on the Future Land Use
map for the purpose of protecting wetlands and waterbodies; a corresponding
Environmental Sensitive Area zone will be included on the Land Use zoning map of the
Development Regulations. Permitted Uses will include: Environmental Protection uses,
Open Space, Parks and Trails (note that motorized trails for all terrain vehicle or
snowmobile use will be a discretionary use; however, the existing snowmobile trail, if
legally approved, will continue as a legally non-conforming use - refer to section 1.5),
uses associated with scientific research into site sensitivity; and Discretionary uses will
include: Mineral exploration-development, Outdoor Market, Restaurant-mobile take-
out and street vendor only, Forestry;
11.2.3 The Environmental Sensitive zone will also accommodate the appropriate sections of
the three proposed pedestrian walking trail initiatives, noted as follows:
-
A seacoast trail from the north end of the community to the south, commencing
near Parkes Cove and ending at the park area of Cox's Point at the end of Main
Street;
-
An approximate 2 (two) km trail from the Main Street park to access Brake's Cove,
and with an additional link to the Sammy's Beach archaeological site. Trail
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construction standards to be established to address the rocky and sometimes steep
terrain; and,
-
A pedestrian walking and bicycling trail from the Falls Road waterfall along Cox's
Brook with connections to varied community areas such as Woodhead Crescent and
to the former school site.
11.2.4 To proceed with each and all of the proposed walking trails, property acquisition for· the
trail routing or negotiation of rights-of-land over private property or occupancy of use
with Crown Lands, or similar easements or legal rights for passage over the subject land
shall be pursued. The typical pedestrian corridor is suggested to be of an approximate
3.0m width and for use of pedestrians, and where appropriate by bicycles; no all-terrain
or other motorized vehicle use is recommended. If possible, where adjacent to a water
body, the trail is to be sited on the outer edge of a 15.0-meter setback to the high-water
mark of a watercourse such as Cox's Brook, and as determined in consultation with the
Department of Municipal Affairs and Environment.
11.2.5 It is the policy of Council that wharves, boathouses and slipways associated with both
commercial operations and as an accessory use to homes or cabins are allowed in all
zones provided that a development application is made with Council and they are in
conformance to the 'Environmental Guidelines for Construction and Maintenance of
Wharves, Breakwaters, Slipways, and Boathouses' found and this link:
https://www.mae.gov.nl.ca/waterres/regulations/appforms
The guidelines indicate the materials allowed for construction, the procedure to protect
contamination of water resources, the condition and appropriate use of equipment in
the vicinity of the waterbody, plus decommissioning requirements.
For all development withing the Flood risk overlay area, a permit is required from the
Water Resources Management Division. Land uses in the Flood Risk zone will be limited
to those allowed under the Water Resource Management Division policy set out in the
"Policy for Flood Plain Management".
11.2.6 As condition of approval for the Planning Area boundary, the Forest Services Branch
requires that domestic harvesting and forestry management activities, such as,
silviculture and road construction activities are permitted uses within the Domestic
Operating Area as identified in the Forest Management Plan, 2019-2013; therefore
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these uses shall be permitted in the Environmental Sensitive area zone and the
Conservation zone.
11.2.7 As condition of approval for the Planning Area boundary, the Forest Services Branch
requires that commercial harvesting activities are permitted on Corner Brook Pulp and
Paper timber licenced areas subject to Town approval within the Environmental
Sensitive area zone and the Conservation zone.
Other considerations:
-
Consider conversation with organizations such as the Geospatial Research Facility of the
College of the North Atlantic in Corner Brook to ascertain their mapping capabilities and
the viability of assisting the Town with a more detailed environmental base mapping of
lands.
-
Consider the feasibility and future designation of lands for a potential alternative septic
effluent treatment site based upon a lagoon and natural reed marsh system, as utilized
by the Town of Stephenville, as a potential alternate means to releasing wastewater
effluent to the waters of Middle Arm.
-
Support a new approach for the Town's land use development application submission
requirements for subdivision and other forms of land development, as defined by the
Development Regulations, to include provisions for the applicant to provide for mapping
identification of all environmentally sensitive area features of the proposed
development site, proposed mitigation measures to protect and preserve sensitive
lands, and to provide detailed information for such elements as proposed storm water
management of the site development for Council's review.
12.0 PROTECTED WATER SUPPLY & WELLHEAD
PROTECTED AREAS
12.1
PLANNING CONTEXT
The Town's water supply and watershed area is a critical element of the community's
sustainability. It is intended that the lands be designated, and policies be adopted to help
maintain integrity of clean, fresh water quality and water flow of sufficient capacity for domestic
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users and for firefighting capacity. This includes two Protected Water Supply Areas and two
Wellhead Protected Areas designated under the Water Resources Act.
The Town should explore a water conservation program for the users of the Town's water
system, particularly through dialogue with fish processing industrial use on the waterfront.
12.2
POLICY STATEMENTS
12.2.1 The Municipal Plan will designate the two Protected Water Supply areas on the Future
Land Use map and the corresponding zone will be shown on the Land Use Zoning map of
the Development Regulations.
12.2.2 Approval from Council and the Water Resources Management Division of the Province
of NL is required for any land use development within the Protected Water Supply areas.
Council will consider the 1993 NL Watershed Protection Plan for the Cox's Brook
Watershed as the framework to manage and administer land uses within the watershed.
This will be consistent with the 'Policy for Land and Water Related Developments in
Protected Water Supply Areas' administered by the Water Resources Management
Division which can be found at this link:
https://www.mae.gov.nl.ca/waterres/regulations/policies/water related.html
Consistent with this policy, Permitted uses include: Environmental'Protection, Natural
Resource use, Cottage (remote only, no cottage subdivision allowed), Forestry, ~
Exploration - not development, Reso«;'Commercial Agriculture, subject to approval by
the Water Resources Management Division; Discretionary uses include: Mi-neral
Working and Mineral Exploration-development.
12.2.3 The Municipal Plan will designate the community's two artesian well locations as
Wellhead Protected Areas on the Future Land Use Map; correspondingly, a
Wellhead Protected Area zone will be shown on the Land Use Zoning map of the
Development Regulations. Permitted Used include Environmefual Protection; and
Discretionary uses include: Single detactfe'd dwelling, Mineral W6rking, Miner al
Exploration - development, accessory uses and accessory buildings.
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12.2.4 A minimum 100 m land development buffer is required from the Wellheads;
development in the vicinity of the wellheads must receive approval from the Water
Resources Management Division and Town Council.
12.2.5 Require that any future rural residential land use development located within the
Planning Area but situated outside of the Town's water supply service area, to provide
for a water supply source app.roved by the Department of Municipal Affairs and
Environment, and in conformance with the quantity and water quality parameters of
the Canadian Drinking Water standards, and where deemed required by Council, to
provide for a professional hydrologist's report and recommendations on the impact of
the new water source on the local area existing aquifers.
13.0 INFRASTRUCTURE
13.1
OVERVIEW
With limited resources, the Town has implemented a sound financial approach to managing its
water, sewer, road and related infrastructure. Through its annual Municipal Budget and Capital
Works Program, the Town identifies priority projects for new construction, for remediation, for
maintenance and for replacement. Since the Town has limited debt obligations and a population
less than 1,000 residents, the community is able to make applications for infrastructure works
financing based upon a provincial capital cost sharing program. The challenge is competition
with other small communities for a share of the limited provincial funding.
13.1.1 WATER AND SEWER
During the late 1970s, the Town began operation of a new water and sewage system. Today the
majority of local residents are serviced with Town water and sewer service. Much of the 1970s
infrastructure is now deemed to be beyond its useful life and is beginning to age, to corrode, to
leak, to erode and/or collapse; new capital infrastructure needs are additionally being identified.
A new bio-swale sewer system provides service to higher elevation homes, but most of the
Town's effluent is piped directly to the sea.
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13.1.2 WASTE MANAGEMENT
Waste management and disposal is now managed by the Western Region Waste Management
corporation. Cox's Cove is part of the Corner Brook Area Sub-Region and all waste is now
processed at the Wild Cove Waste Disposal Site. The local waste disposal site which was in
operation for nearly 20 years is closed; however, the waste management buffer is still observed
by the provincial government when considering Crown land applications.
13.1.3 MUNICIPAL BUILDINGS AND EQUIPMENT
Municipal buildings of the Town Hall, the fire hall and the natural ice surface arena serve the
community needs adequately for the current time, albeit ongoing maintenance and item repairs
occur occasionally with the capital budget. The Town contracts out most of its public works
equipment needs for excavation and trucking. The fire department has received an upgraded
fire engine to more effectively respond to local fires.
13.1.4 RESEARCH AND DESIGN STUDIES
In addition to addressing 'hard' infrastructure items of water, sewer, roads and other
community services, the Town has established a visionary community needs framework that
identifies a diverse list of varied research and design studies that are deemed required to help
move Cox's Cove forward. The project list ranges from a floodplain study to a habitat evaluation
of the marshland of Cox's Brook to tourism and recreation initiatives.
13.1.5 HIGHWAY 440
While the Town has displayed skill and foresight as a steward of its own infrastructure, the
primary Provincial roadway into the community, Highway 440 as owned and maintained by the
Province, will require ongoing repair and upgrade to acceptable engineering standards on an
annual basis to assure continued safe and convenient access to the community.
13.2
INFRASTRUCTURE PRIORITIES
The five infrastructure priorities for the community from the Town's 2013 Capital Investment
Plan include the following projects:
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Remediation of Frenchman's Pond Water Main (long-standing problems with the
Town's main water source and the system's inability to reliably provide sufficient water
flow);
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Hillview Drive Water and Sewer Main Extension (water extension and lift station from
main system will enable servicing to higher elevation level homes and achieve cleaner
water, greater flow and additional fire-fighting capacity);
-
Main Street Sewer Main and Curb Stop Replacement (aged existing services are located
at sea level at this juncture of Main Street, and are subject to erosion, corrosion and
collapse, and require replacement);
-
Breakwater (350 meters of seawall required to protect a section of Main Street from
erosion);
-
Ditch and Culvert Replacement (during next decade, an estimated 3/4s of the Town's
roads will need replacement or resurfacing - ditch and culvert work will assist to extend
life of road surfaces).
Beyond these outlined projects, varied other infrastructure requirements are anticipated,
including upgrade and surfacing of Country Road to the mink farm, continued road asphalt
resurfacing, and potential requirement for increased sewer effluent treatment in lieu of pumped
sewer outfall to sea.
13.3
PLANNING POLICIES
13.3.1 Continue the Municipal Budget and Capital Works Program annual identification and
priority ranking of future capital works projects for water, and sewer, and for
improvements to the roads and drainage system, and other community needs.
13.3.2 Continue to prioritize the most aged components of local infrastructure for
replacement.
13.3.3 Expand the planning timeframe for forecasted required community capital projects to a
longer financial horizon of 10 years, by providing for an estimate of both future
probable costs and sources of funding for varied water, sewer, road, sidewalk,
recreation, waste management, public works and fire department vehicle and
equipment upgrades, and other capital infrastructure projects, and for identification of
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the required research, design, land use planning and economic development studies
that may be required for the community over the next decade. Review and amend
project list and priorities on an annual basis.
13.3.4 Continue efforts to remediate the Frenchman's Pond water supply and delivery issues
.and pursue the system as the sole water supply and pumping system for the
community.
13.3.5 Be cognizant of the cumulative effect of climate change to local infrastructure, and the
emerging need to address flood management issues through a comprehensive
engineering review and potential preparation of a climate change adaptation strategy.
13.3.6 Continue a community vision for maintaining public access and open space
development of the waterfront in any flood management work plan proposal to raise
the level of the Main Street roadway and/or in development of an extensive seawall
barricade.
13.3.7 Continue to participate in regional plans and efforts for an improved waste
management framework, and in the interim, begin to introduce waste reduction
initiatives such as a two-bag limit for refuse collection per household.
13.3.8 Explore options for the community to introduce a household recycling and compost
collection program.
13.3.9 Explore the viability of an enhanced local approach to reducing waste through
environmental education. Be cognizant of the possibility that if regional waste disposal
costs per household increase, there may evolve the possibility of increased illegal
dumping in the back-country forest service roads, on woods roads and near waterfront
locations. This will result in the need for creating awareness of local impacts to sensitive
environments, to the Town's tourism appeal and sense of place, and for additional costs
to the community of cleaning up illegal dump sites.
13.3.10 Explore opportunities, wherever feasible, for the use of alternative energy sources such
as solar and small turbines with new developments in the community. Development
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standards will be included in the Development Regulations for both commercial and
residential wind turbines.
13.3.11 Maintain within the Development Regulations minimum road construction
requirements and standards for new land and building developments.
13.3.12 Pursue the connection of current dead-end and one-way streets within the community
wherever feasible, through preparation of an advance street plan that will help guide
new development as it is proposed in locations where new road allowances and
connections may be achieved.
13.3.13 Continue ongoing dialogue with the Province with regard to upkeep, maintenance,
repair and replacement of the Highway 440 access to the community. Ensure road
shoulder drainage erosion is repaired after storm events.
14.0 GOVERNANCE APPROACH
14.1
OVERVIEW
The Town of Cox's Cove, similar to other rural and coastal based communities within NL and
Atlantic Canada, is undergoing change. Continued demographic trends of an out-migration of
youth and young adults to seek work elsewhere, and an aging of the local population, and other
community indicators of significant employment dependence on two local resource companies,
ongoing volunteer commitment requirements on local residents, increasing consideration for
delivery of services on a regional scale, ongoing financial demands due to a tax base skewed to
residential housing and requirements for upgrades to aging infrastructure have created
significant local government challenges.
Despite these constraints and challenges, Cox's Cove is beginning to exhibit stability as a
community. The key to the future, in large part, will be the ability of the Town and economic
conditions to continue to support new residents moving into the community as older residents
pass. By continually improvi.ng the local quality of life through ongoing infrastructure upgrades,
enhancement of recreational amenities and creation of an improved sense of place for the
community, Cox's Cove will remain a preferred place to live for many. In steering the ship in this
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manner, the volunteer elected members of Town Council are the custodians responsible for
leading the community into the future.
The purpose of this Section of the Municipal Plan is to provide policy direction for continued
effective local governance in Cox's Cove.
Over the next ten years, the Town will need to continue 'to do more with less'. Until the critical
mass of population within the community increases, progress in the community will originate
from the community itself.
The Municipal Plan policies and companion land use map provide another governance tool for
Council to implement and administer in addressing emerging community issues in a coordinated
fashion, as follows:
-
To preserve and protect the environmental and conservation assets of the community;
-
To help the Town assume the driver's seat in managing future growth and development;
-
To pursue a diverse residential strategy based upon economic efficient use of the land
supply and infill development on existing services;
-
To respond the potential effects of climate change and flood risks;
-
To work towards creating an enhanced sense of place for the community;
-
To acknowledge aging of the local population;
-
To expand opportunities for active and healthy living by placing recreational
development priority on developing varied pedestrian walking trail routings throughout
the community;
-
To realize tourism opportunities for the Town's waterfront location;
-
To support a comprehensive signage strategy for the Town to market local tourism;
-
To consider varied opportunities to help diversify the local economy; and,
To maintain the integrity of Comprehensive Development Areas for future residential and
community growth.
The Municipal Plan also highlights the need for the Town to continue to be resourceful in the
manner it approaches community projects by reaching out for information and support from
varied partners such as local business persons and residents playing an active role in an advisory
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committee to Council, with specific provincial departments and agencies, and in consultation
with NL university and professional programs.
The following policy statements identify how an expanded approach to governance may be
considered by Council.
14.2
PLANNING POLICIES
14.2.1 Consider the establishment of annual Goals and Objectives for Council, based upon
priority local needs, what is affordable, what is realistically achievable, assigning who
will follow through with each goal and/or objective, and within what timeframe the goal
will be accomplished, and incorporate an approach of semi-annual status update and
progress sessions with Town staff, Council and members of the public.
14.2.2 Support an approach of continued inclusive community governance through potential
formation of a Community Growth Advisory Committee to Council to assist in
implementation of the new land use planning framework, and consideration of holding
community based 'Town Hall' type meetings in locations such as the Golden Rainbow
Seniors Club to inform of the Municipal Plan's policy direction and to provide
background of current development proposals, to share Council's identified annual
goals and objectives with local residents, to outline Capital Projects information and to
provide opportunity for enhanced community ideas expression opportunities.
14.2.3 Consider the annual opportunity to formally recognize local volunteers and success
stories within the community through such initiatives as a Town sponsored volunteer
person of the year award and expand the award to possibly also include local
community organizations, local businesses and local residential homes that display
dedication, hard work and/or property appearance pride.
14.2.4 Explore expanded partnerships with NL University and other professional educational
programs, including summer internment opportunities with graduate school community
planning and economic development students, to assist with specific community
projects, and adopt a Council meeting approach of each month inviting an external
provincial government or agency representative to provide a presentation relevant to
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the Town's needs, and to identify what external programs and services may be available
to assist the Town to meet its varied challenges.
14.2.5 Nurture ongoing information sharing with elected provincial and federal area
representatives, and identification of new community project funding opportunities
with programs such as Gas.Tax Revenues and Atlantic Canada Opportunities Agency.
14.2.6 Continue participation in regionalization initiatives such as cost shared projects, tourism
planning initiatives and joint funding of delivery of services models and proposed new
regional governance structures from the perspective of what is financially feasible and
beneficial to the residents of Cox's Cove.
14.2.7 Upon creation of a new website for the Town, utilize the online presence to convey an
upbeat positive image of the sustainable planning direction of the Town, to provide for
'recent news' and to create a feedback forum for local residents and visitors to provide
comments to Council on varied issues.
14.2.8 Prior to the next municipal election, generate enthusiasm amongst local residents to
participate as Council candidates for election, especially for participation by younger
adult members of the community.
15.0 PLAN IMPLEMENTATION
15.1
OVERVIEW
The Town of Cox's Cove is a strong community that has progressed in the face of adversity of
population loss, aging of the local population and a limited operating budget. It is a community
that has a close connection to the sea, and one that has proven to be resilient and resourceful
despite its dependence upon the volatility of the fishing sector. Town Council has performed to
a professional level in managing its infrastructure, in shaping and influencing the character of
the community and in identifying varied needs for the future. The challenges of the future are
many, and the opportunities ahead are as numerous.
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The Municipal Plan has articulated five planning goals and varied objectives through supportive
land use policy recommendations to assist the Town more effectively manage change over the
next ten year planning horizon. The Municipal Plan, through the outlined Policies, provides the
framework for Council to make choices on managing the Town's land base and challenges/
opportunities in an environmentally, economically and socially sustainable fashion.
Many of the Plan policy statement's complement actions that the Town is already pursuing. In
this manner, the Municipal Plan policies provide further credibility to current community
initiatives.
Implementation success with any or all of the Municipal Plan will be critically dependent on
Council's support and adherence to the Plan policies. The Municipal Plan implementation
strategy will also require ongoing reference to and familiarity with the Plan's policies, and
attention to varied action initiatives to realize incremental and longer-term success.
Coincidental to the Plan policy implementation will be varied tasks and requirements of Council,
as outlined below.
15.2
COUNCIL ROLE
Tasks to Consider
Council will play the central role in implementing the Municipal Plan by considering the
following tasks:
-
Reviewing the draft version of the Municipal Plan and advising which policies they wish
to retain and which ones should be amended or deleted;
-
Considering opportunities for circulation of the draft Plan to the community for review
and comments;
-
Endorsing the varied action initiatives of the Plan to be pursued within the next ten-year
timeframe;
-
Maintaining adherence to the vision and goals and objectives of the Plan; and,
-
Directing that upon Council support of the Draft Municipal Plan and any requested
revisions, that the Development Regulations be updated to coincide with the outlined
direction of the Municipal Plan.
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Other Regulations to Adopt and/ or Amend
As part of the Municipal Plan and Development Regulations update, the Town may additionally
wish to consider the adoption or revision of additional municipal bylaws, regulations or
procedures, to coincide with the intent of the Municipal Plan.
Representative tools and administrative procedures that are typically utilized and/or eligible to
help manage local iand use planning and development are identified as follows:
-
Subdivision design and regulations;
-
Building bylaw;
-
Unsightly Premises and/or Noise Bylaw;
-
Tree Retention Policy and/or Tree Cutting Bylaw;
-
Separate sign bylaw or regulations;
-
Expanded 20 Year Capital Budget process;
-
Cost recovery land use development application fees and services structure;
-
Land development application forms;
-
Parkland acquisition methodology and financial system for cash-in-lieu of parkland
levies; and,
-
Advisory Committee approach.
15.3
IMPLEMENTATION ACTION PLAN
The following listing of community initiatives, recommended studies and suggested enhanced
partnerships, as identified within the Municipal Plan Policy Statements, represent varied key
action steps that Council may consider and/or prioritize in implementing the Plan. The priorities
may be merged with previous priorities identified by Council through its Capital Plan process.
Each listed policy or task action, where applicable, may further need to be assigned a timeframe
for completion within the ten-year planning horizon of the Municipal Plan, as follows:
-
Short term ("S") represents an immediate one to five-year priority period;
-
Long term ("L") signifies a longer-range goal to be addressed within a five to ten-year
period.
-
Where a Policy represents a continuation of an action that is already being undertaken,
a ("C") should be assigned to indicate 'Continuation'.
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The completion timeframe for each policy recommendation may be assigned following review of
the Municipal Plan by members of Council and staff, and upon compilation of revision
comments.
The policy actions may also be considered for an assigned lead role individual or community
group to champion the action and take the necessary steps and measures to enable its
completion. Initially the lead roles will be primarily be assigned to a member of Council or to a
municipal staff person. Over time as community partnerships are established, the role
responsibility for implementing the Plan's actions may be shared with varied organizations
within the community.
The estimated cost of a policy, if applicable, allows Council to assess the affordability of specific
actions, and if necessary, to defer the action completion to subsequent years. Council is well
versed in providing estimated project and research study cost estimates as part of its annual
Municipal Plan preparation process.
Recommended Studies and Research
-
Tourism Marketing Strategy($ 30,000.);
-
Consumer Spending Leakage Study ($20,000.);
-
Commercial Business Attraction Strategy ($20,000.);
-
Comprehensive Community Signage Program ($15,000.);
-
Revitalized Community Logo and Brand Image ($22,000.);
-
Wetlands and Environmental Mapping ($18,000.);
-
Habitat Conservation Plan ($10,000.);
-
Parks and Recreation Needs Assessment ($15,500.);
-
Parkland Acquisition Strategy ($11,500.);
-
Recreation Master Plan ($34,000.);
-
Resource Management Plan for Brake's Cove and Sammy's Beach ($ 60,000.);
-
Forest Fire Interface and Risk Study ($21,000.);
-
Climate Change Adaptation Strategy ($35,000.); and,
-
Community Emergency Plan update ($9,500.).
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Recommended Community Project Tasks
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Crown Lands community mapping study and inventory;
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Annual Council Goals and Objectives procedure;
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Finalization of land use development application form;
-
Decision on recommended 10 % parkland provision at time of subdivision;
-
Property acquisition and/or right-of-way requirements to realize proposed walking
trails;
-
Approach for corporate funding for recreational equipment and parkland
improvements;
-
Commemorative procedure for parkland, tree planting and park bench donations;
-
Options to assist Town become more 'bike-friendly';
-
Summer student placements and work experience internships;
-
Historic pioneers street naming list;
-
Re-use opportunities with former school building;
-
Household recycling and compost program;
-
Ride-share program for transportation to Corner Brook and area;
-
Waterfront washroom facilities; and,
-
Community volunteers award recognition program.
Recommended Enhanced Partnerships
-
Expanded Advisory Committees to Council (Business Development and Growth Review);
-
Crown Lands (provincial land ownership inventory);
-
Department of Municipal Affairs and Environment (trail development setbacks et al);
-
Water Resources Branch (community flood risks);
-
Department of Fisheries and Oceans (environmental best practices);
-
Land Stewardship Resources Division (agricultural lands);
-
Provincial Archaeology Office (Sammy's Beach);
-
Department of Recreation, Culture and Tourism (Brake's Cove);
-
Memorial University Harris Centre (living museum of Brake's Cove);
-
College of Atlantic (business management, mapping);
-
Regional Tourism Association and NL Destination Marketing Organization;
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Rural Secretariat for Corner Brook to Rocky Harbour;
-
Adjacent communities of Mclvers and Gillams;
-
Affordability and Choice Today (senior's housing study application submission);
-
Great Canadian Shoreline Cleanup Program;
-
Paddle Canada; and,
-
Local home-based businesses.
15.4
MONITORING & REVIEW
To track completion and success of the Municipal Plan policies, an annual review by the assigned
individual or community organization, is recommended to take place at time of Council's annual
goals and objectives session. The Urban and Rural Planning Act, 2000, also requires that the
Municipal Plan be reviewed within a five period after its registration, and to make any
adjustments as deemed required to address changing needs and community desires.
15.5
FUTURE LAND USE MAP
As part of the implementation of the land use policy statements of the Municipal Plan, the
attached Map 1 Future Land Use Map is part of the Plan. The Town's Planning Area is divided
into varied land use designated classes that apply as the intended land use activities for specific
properties and specific land areas of the community. Based on Land Use Classification, the
following Future Land Use designations are found on the map. The following list indicates the
Land Use Zones to be included in the Development Regulations to facilitate implementation.
The Map designations are intended to serve as the intended land use direction for the
community to identify the current and proposed land use activities of property located
throughout the Planning Area for an intended time period of the next ten years.
The Municipal Plan Future Land Use Map designations will complement the zoning categories at
the individual property level, as identified by the Land Use Zoning maps that accompany the
Town's Development Regulations document.
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APPENDICES:
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Schedule 1: Flood mapping for Cox's Cove
Link:
http://www.mae.gov.nl.ca/for/flood policy/coxscove area.html
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Map: Future Land Use Map
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