Gander, Newfoundland and Labrador
· adopted 2021-09-03
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Environment & Infrastructure Solutions
FINAL
Town of Gander
Municipal Plan 2019 - 2029
Municipal Plan
Submitted to:
Town of Gander
100 Elizabeth Drive
Gander, NL
A1V 1G7
Submitted by:
Wood Environment & Infrastructure Solutions,
a Division of Wood Canada Limited
133 Crosbie Road
PO Box 13216
St. John's, NL A 1 B 4AS
7 June 2021
Wood Project#: TF1770707
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IMPORTANT NOTICE
This report was prepared exclusively for Town of Gander by Wood Environment
& Infrastructure Solutions, a Division of Wood Canada Limited (Wood). The
quality of information, conclusions and estimates contained herein is consistent
with the level of effort involved in Wood's services and based on: i) information
available at the time of preparation, ii) data supplied by outside sources and iii)
the assumptions, conditions and qualifications set forth in this report. This report
is intended to be used by Town of Gander only, subject to the terms and
conditions of its contract with Wood. Any other use of, or reliance on, this report
by any third party is at that party's sole risk.
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Urban and Rural Planning Act 2000
Resolution to Adopt
Town of Gander Municipal Plan, 2019 - 2029
Under the authority of Section 16 of the Urban and Rural Planning Act 2000, the Town
Council of Gander adopts the Gander Municipal Plan, 2019-29.
Adopted by the Town Council of Gander on the 14th day of October 2020.
Signed and seale£
-:::J¥----day of Sun(_2021.
Mayor
~!
Percy Farwell
\
(Council Seal)
Clerk:
~
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Canadian Institute of Planners Certification
I certify that the attached Municipal Plan has been prepared in accordance with the
requ· ements of the Urban and Rural Planning Act 2000.
Urban and Rural Planning Act 2000
Resolution to Approve
Town of Gander 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 Gander
(a) Adopted by the Gander Municipal Plan on the 14th day of October 2020.
(b) Gave notice of the adoption of the Gander Municipal Plan by advertisement posted on the
Town's website from October 15 to November 6, 2020 and again from November 9 to
November 27, 2020.
(c) Set the 5th day and 26th day of November 2020 at the Albatross Hotel, Gander for the
holding of public hearings to consider objections and submissions.
Now under the authority of Section 23 of the Urban and Rural Planning Act 2000, the Town
Council of Gander approves the Gander Municipal Plan with the following changes.
-
A change from the Residential designation to the Open Space designation to create a
greenspace buffer between existing residential homes and future development in various
locations of the Spruce Court subdivision.
-
A realignment between the Open Space and Commercial designations to accommodate a
change in the route of the Newfoundland T'Railway north of Roe Avenue.
SIGNED AND SEAL
is 1-~ y of June_ 2021 .
Mayor:
Clerk:
/4 / 66ii2
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~---~,.v>lic.-rcw' f _,_,\ =->-----~
D0velopment Re!:JH+a-t-iem
REGISTERED
(Council Seal)
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Town of Gander
Municipal Plan 2019 - 2029 (Final)
Wood Project #: TF1770707
wood.
7 June 2021
TABLE OF CONTENTS
1.0
INTRODUCTION ................................................................................................................................................................... 1
1.1
Purpose of the Plan ............................................................................................................................................ 1
1.2
Plan Preparation .................................................................................................................................................. 1
1.3
Contents of the Municipal Plan ..................................................................................................................... 1
1 .4
Municipal Plan Administration ...................................................................................................................... 1
1.5
Interpretation ....................................................................................................................................................... 2
2.0
GOALS AND OBJECTIVES ................................................................................................................................................. 3
2.1
Community Structure and Character .......................................................................................................... 3
2.2
Economic Growth and Development .......................................................................................................... 3
2.3
Environment .......................................................................................................................................................... 4
2.4
Health and Social Well-Being ........................................................................................................................ 4
2.5
Housing .................................................................................................................................................................. 5
2.6
Transportation ..................................................................................................................................................... 5
2.7
Open Space and Recreation ........................................................................................................................... 5
2.8
Culture and Heritage ......................................................................................................................................... 6
2.9
Capital Works ....................................................................................................................................................... 6
2.10
Governance ........................................................................................................................................................... 6
2.11
Municipal Finance ............................................................................................................................................... 7
3.0
COMMUNITY WIDE POLICIES ........................................................................................................................................ 8
3.1
Policy Framework ................................................................................................................................................ 8
3.2
General Land Use Policies ............................................................................................................................... 8
3.2.1
General Layout of Town .................................................................................................................. 8
3.2.2
Compatibility of Uses ....................................................................................................................... 9
3.2.3
Non-Conforming Uses ..................................................................................................................... 9
3.2.4
Lc:ind Development and Subdivision Proposals ..................................................................... 9
3.2.5
Consolidation and Infill of Serviced Areas ............................................................................. 10
3.2.6
Public Streets ..................................................................................................................................... 11
3.2.7
3.2.8
3.2.9
3.2.10
3.2.11
3.2.12
3.2.13
3.2.14
Public Access to Watercourses ................................................................................................... 11
Adaptive Re-use of Existing Buildings and Properties ...................................................... 11
Heritage and Archaeological Resources ................................................................................. 11
Discretionary Uses ........................................................................................................................... 11
Mineral and Petroleum Exploration .......................................................................................... 12
Mineral Working ............................................................................................................................... 12
Forest Resources and Trees ......................................................................................................... 12
Utilities .................................................................................................................................................. 12
3.2.15
Provision for the Disabled and Elderly .................................................................................... 13
3.2.16
Provisions Related to Airport Impacts ..................................................................................... 13
3.3
General Environmental Policies ................................................................................................................... 13
3.3.1
Protection of Sensitive Areas ...................................................................................................... 13
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3.3.2
Consideration of Environmental Impacts ............................................................................... 14
3.3.3
Soils and Drainage ........................................................................................................................... 14
3.3.4
Watercourse and Wetland Protection ..................................................................................... 14
3.3.5
Unstable Geology and Soils ......................................................................................................... 14
3.3.6
Shorelines ............................................................................................................................................ 14
3.3.7
Steep and Unstable Slopes .......................................................................................................... 14
3.3.8
Storm Drainage ................................................................................................................................. 15
3.3.9
Habitat Conservation ...................................................................................................................... 15
3.3.10
Climate Change ................................................................................................................................ 15
3.3.11
Gander Lake Protected Water Supply Area ........................................................................... 15
3.3.12
Use of Discretionary Authority ................................................................................................... 16
3.4
Infrastructure Policies ...................................................................................................................................... 16
3.4.1
Water Supply System ..................................................................................................................... 16
3.4.2
Sanitary Sewer System ................................................................................................................... 16
3.4.3
Stormwater Management. ............................................................................................................ 16
3.4.4
Water and Sewer Requirements for Land Development... ............................................... 16
3.4.5
Transportation ................................................................................................................................... 16
4.0
LAND USE DESIGNATIONS ............................................................................................................................................ 19
4.1
Conservation ....................................................................................................................................................... 19
4.1.1
Land Use Zones ................................................................................................................................ 19
4.2
Residential ........................................................................................................................................................... 20
4.2.1
General lntent .................................................................................................................................... 20
4.2.2
Guiding Principles ............................................................................................................................ 20
4.2.3
Land Use Zones ................................................................................................................................ 21
4.2.4
Residential Low Density Zone ..................................................................................................... 22
4.2.5
Residential Medium Density Zone ............................................................................................ 22
4.2.6
Residential High Density-1 Zone ............................................................................................... 23
4.2.7
Residential High Density-2 Zone ............................................................................................... 23
4.2.8
Residential Mini-Home Zone ...................................................................................................... 23
4.2.9
Residential Rural Zone ................................................................................................................... 24
4.3
Commercial ......................................................................................................................................................... 24
4.3.1
General Intent .................................................................................................................................... 24
4.3.2
Compatibility with Neighbouring Uses ................................................................................... 25
4.3.3
Off-Street Parking and Loading ................................................................................................. 25
4.3.4
Area Plan ............................................................................................................................................. 25
4.3.5
Land Use Zones ................................................................................................................................ 25
4.3.6
Town Centre Zone ........................................................................................................................... 26
4.3.7
Commercial General Zone ............................................................................................................ 27
4.3.8
Commercial Shopping Centre Zone ......................................................................................... 27
4.3.9
Commercial Highway Zone .......................................................................................................... 28
4.3.10
Commercial Local Zone ................................................................................................................. 28
4.4
Industrial .............................................................................................................................................................. 29
4.4.1
General lntent .................................................................................................................................... 29
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4.4.2
Compatibility with Neighbouring Uses ................................................................................... 29
4.4.3
Off-Street Parking and Loading ................................................................................................. 29
4.4.4
Area Plan ............................................................................................................................................. 29
4.4.5
Land Use Zones ................................................................................................................................ 29
4.4.6
Commercial-Light Industrial Zone ............................................................................................ 30
4.4.7
Industrial General Zone ..................................................................................... : ........................... 30
4.5
Tourism Recreation .......................................................................................................................................... 30
4.5.1
Protecting Environmentally Important and Scenic Areas ................................................ 31
4.5.2
Development Plan ........................................................................................................................... 31
4.5.3
Land Use Zones ................................................................................................................................ 31
4.5.4
Tourism Recreation Zone .............................................................................................................. 31
4.6
Public lnstitutional ............................................................................................................................................ 32
4.6.1
General Intent .................................................................................................................................... 32
4.6.2
Land Use Zones ................................................................................................................................ 32
4.7
Open Space ......................................................................................................................................................... 32
4.7.1
General Intent .................................................................................................................................... 32
4.7.2
Land Use Zones ................................................................................................................................ 32
4.7.3
Open Space Zone ............................................................................................................................ 33
4.7.4
Open Space Recreation Zone .................................................... : ................................................ 33
4.8
Utility ..................................................................................................................................................................... 34
4.8.1
General Intent .................................................................................................................................... 34
4.8.2
Land Use Zones ................................................................................................................................ 34
4.8.3
Utility Zone ......................................................................................................................................... 34
4.9
Highway Corridor ............................................................................................................................................. 34
4.9.1
General lntent .................................................................................................................................... 34
4.9.2
Highway Corridor Zone ................................................................................................................. 35
4.10
Rural ....................................................................................................................................................................... 35
4.10.1 General lntent .................................................................................................................................... 35
4.10.2
Land Use Zones ................................................................................................................................ 35
4.10.3
Rural Zone ........................................................................................................................................... 35
4.10.4
Residential Seasonal Zone ............................................................................................................ 36
4.11
Future Development Area ............................................................................................................................. 37
4.11 .1. General lntent .................................................................................................................................... 37
4.11.2
Land Use Zone .................................................................................................................................. 37
4.11.3
Land Uses ............................................................................................................................................ 37
4.12
Airport ................................................................................................................................................................... 37
4.12.1
General Intent .................................................................................................................................... 37
4.12.2
AirportZone ....................................................................................................................................... 37
5.0
IMPLEMENTATION ............................................................................................................................................................ 38
5.1
Administration of the Plan ............................................................................................................................ 38
5.1.1
Map lnterpretation .......................................................................................................................... 38
5.1.2
Development Applications ........................................................................................................... 38
5.1.3
Subdivision Proposals and Agreements ................................................................................. 39
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5.1.4
Non-Conforming Uses ................................................................................................................... 39
5.2
Public Participation .......................................................................................................................................... 40
5.3
Development Regulations ............................................................................................................................. 40
5.3.1
Council Responsibility .................................................................................................................... 40
5.3.2
Content ................................................................................................................................................ 40
5.4
Development Control ..................................................................................................................................... 41
5.4.1
Municipal Plan is Binding .............................................................................................................. 41
5.4.2
Council Responsibility .................................................................................................................... 41
5.4.3
Subdivision Development Applications .................................................................................. 41
5.4.4
Right to Appeal ................................................................................................................................. 41
5.4.5
Provincial and Federal Referrals ................................................................................................ .41
5.5
Amending the Municipal Plan and Development Regulations ..................................................... .41
5.5.1
Municipal Plan Amendment ........................................................................................................ 41
5.5.2
Stand Alone Amendment to Development Regulations ................................................. .41
LIST OF TABLES
Table 3-1: Gander Urban Street Classification ........................................................................................................................ 16
Table 4-1: Future Land Use Designations ................................................................................................................................. 19
Table 4-2: Conservation Designation - Land Use Zones .................................................................................................... 20
Table 4-3: Residential Designation - Land Use Zones ......................................................................................................... 21
Table 4-4: Commercial Designation - Land Use Zones ....................................................................................................... 25
Table 4-5: Industrial Designation - Land Use Zones ............................................................................................................ 29
Table 4-6: Tourism Recreation Designation - Land Use Zones ....................................................................................... 31
Table 4-7: Public Institutional Designation - Land Use Zones ......................................................................................... 32
Table 4-8: Open Space Designation - Land Use Zones ...................................................................................................... 33
Table 4-9: Utility Designation - Land Use Zones ................................................................................................................... 34
Table 4-10: Rural Designation - Land Use Zones .................................................................................................................. 35
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Town of Gander
Municipal Plan 2019 - 2029 (Final)
Wood Project#: TF1770707
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7 June 2021
1.0
INTRODUCTION
This section provides general information on the Town of Gander's Municipal Plan and Development
Regulations.
1.1
Purpose of the Plan
The Gander Municipal Plan is a comprehensive policy document to manage development and growth within the
Town of Gander Municipal Planning Area over the ten-year planning period 2019-2029. The Plan repeals and
replaces the Gander Municipal Plan 2019-2029. This document has been prepared in compliance with the Urban
and Rural Planning Act, 2000, (also referred to as the Act).
1.2
Plan Preparation
The Plan was drafted following a comprehensive review of the former Municipal Plan and Development
Regulations and engagement with Council, staff, appropriate government agencies and public participation.
Relevant planning issues have been reviewed as required under the Act, including a study of land use, population
change, economic and social issues, transportation, municipal services and environmental issues.
The Plan guides the future growth and physical improvement of the Town by identifying locations and policies
for various types of land use development. The Municipal Plan provides the basis for the Land Use, Zoning and
Subdivision Regulations (generally referred to as the Development Regulations), which Council will administer
through subdivision approvals and development permits. The Municipal Plan authorizes Council to prevent the
undertaking of any development that contravenes a policy stated in the Municipal Plan.
1.3
Contents of the Municipal Plan
The Municipal Plan, comprising this document and the accompanying Future Land Use Maps, constitutes a legal
document pursuant to the Urban and Rural Planning Act, 2000. It contains:
-
The aims of Council (goals and objectives).
-
Land use policies for future development.
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Future Land Use maps, which allocate land for future development, environmental protection and natural
resource uses.
The Background Report in Section 2.0 describes conditions in the Town at the time the Municipal Plan was
prepared and provides the rationale behind policies contained in the Municipal Plan. The Background Report
does not form part of the legal document.
1.4
Municipal Plan Administration
After Ministerial approval of the Gander Municipal Plan was published in the Newfoundland and Labrador
Gazette, the Plan became binding upon Council and all other persons, corporations and organizations. Council
administers the Municipal Plan by carrying out the Plan's policies. This is done in several ways:
-
By preparing and implementing the Development Regulations,
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By issuing development permits to applicants wishing to subdivide land, erect a building, or change the use
of a building or land, or conversely, refusing to issue permits for developments that are not in accordance
with the Plan and
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Municipal Plan 2019 - 2029 (Final)
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By adopting or approving development schemes, concept plans, comprehensive plans and so forth.
In accordance with Section 25 of the Act, Council may make amendments to this Plan and Development
Regulations at any time. Amendments will be brought into effect by the same process used to bring the
Municipal Plan into effect. Sections 14 to 25 apply to an amendment to the Plan and Development Regulations.
1.5
Interpretation
In this Municipal Plan:
-
"Council" means the Council of the Town of Gander.
-
"Development Regulations" mean the Gander Land Use Zoning and Subdivision Regulations.
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"Municipal Planning Area" means the Gander Municipal Planning Area.
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"Town" means the Town of Gander.
The boundaries between the different land use designations in the Municipal Plan are meant to be general,
except where the boundary is delineated by a road or other prominent feature in which case it defines the exact
limits between each designation.
In accordance with Section 108 of the Act, nothing in the Plan will affect the continuance of land uses that were
lawfully established on the date that this Plan came into effect.
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Town of Gander
Municipal Plan 2019 - 2029 (Final)
Wood Project #: TF1770707
7 June 2021
2.0
GOALS AND OBJECTIVES
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This section outlines the Town's planning goals and objectives for the 2019-2029 period. A goal is a desired
state, which reflects the long-term intent of Council and relates to a major area of interest or concern. An
objective is a short-range step towards achieving the goal. In this context, an objective is an outcome or output
desired by Council in less than 10-years.
2.1
Community Structure and Character
Goal:
-
Encourage a growth structure for Gander that ensures orderly development, efficient development and use
of municipal services, compatibility between land uses, avoidance of sprawl and retention of the Town's
attractive natural and built features.
Objectives:
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Encourage and facilitate new development through infilling along existing serviced streets, as well as
through new streets built in close proximity to existing streets and infrastructure.
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Conserve and protect environmentally important and sensitive areas including water supply areas, river and
lake shorelines, ponds, streams, wetlands, steep slopes and visually significant features.
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Encourage lot layout designs that are efficient in the use of municipal infrastructure and sensitive to the
existing physical form and character of the community.
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Encourage preservation and maintenance of heritage areas and buildings.
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Improve land and building accessibility standards to facilitate mobility by disabled and elderly residents.
2.2
Economic Growth and Development
Goal:
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Encourage diversified and balanced economic development that fosters employment opportunities,
promotes a high quality of life, contributes financially to the municipality and protects the environment.
Objectives:
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Foster the economic growth of Gander particularly in regard to the potential for industrial development,
tourism, retail sales and services, air and road transportation services and housing development.
-
Build on Gander's economic strengths and opportunities as a conference and event destination and the
travel and transportation hub of Central Newfoundland, particularly with respect to Gander Airport and its
status as a provincial gateway.
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Ensure the ongoing viability and improvement of major sectors and employers including GIAA, NavCanada,
Central Health, government services and the retail sector.
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Encourage continued diversification of the local economy though the attraction of new businesses and
support of existing businesses.
-
Encourage and accommodate compatible commercial, industrial and tourism opportunities in suitable
locations.
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Municipal Plan 2019 - 2029 (Final)
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Allocate good quality land in desirable locations for a range of business activities.
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Allow for compatible mixed development of residential, commercial, industrial, institutional and recreational
land uses.
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Promote Gander as an attractive place to live, drawing upon its advantageous location, commercial and
community services and recreational amenities.
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Support resources and activities that enhance tourism such as the preservation and development of trails,
shorelines, heritage sites and visitor facilities.
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Encourage home occupations that fit with the neighbourhood character and do not impinge on the
reasonable enjoyment of neighbouring residential properties.
2.3
Environment
Goal:
-
Conserve, protect and enhance important and sensitive environmental resources.
Objectives:
-
Provide municipal services at environmentally acceptable standards.
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Conserve, protect and enhance important and sensitive environmental resources, including lakes, streams,
wetlands, riparian areas, steep slopes and scenic vistas.
-
Protect the Gander drinking water supply from land uses and activities that could negatively affect water
quality and quantity.
-
Reduce stormwater flows, erosion and impacts on receiving waters by improving how runoff is managed in
developed and developing areas.
-
Limit development in wetland and flood risk areas.
2.4
Health and Social Well-Being
Goal:
-
Provide for the welfare of all Gander residents by addressing basic human needs, community services and
quality of life.
Objectives:
-
Promote opportunities to meet the needs of residents for food, shelter, health care, education, employment,
income and safety.
-
Promote access to childcare, youth programs and family services.
-
Facilitate the housing needs of residents of all ages, income levels and physical and mental abilities (also see
Section 2.5).
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Enhance Gander as an accessible and age-friendly community by improving development standards for the
mobility needs of disabled and elderly residents.
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Promote opportunities for inclusion of low-income and disadvantaged residents into all aspects of
community life.
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2.5
Housing
Goals:
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Promote and facilitate adequate housing for all residents regardless of age, income, abilities and family
status.
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Ensure development proceeds in a way that maintains a pleasant residential environment.
Objectives:
-
Allocate sufficient residential land to meet anticipated requirements for the next ten years.
-
Protect residential quality of life and property values.
-
Accommodate a range of housing types to satisfy market needs and ensure affordable housing is available
for residents of different income levels, age groups, family structures and abilities.
-
Manage residential development in a manner that preserves and protects sensitive environments and public
open space.
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Encourage development of single, double and multi-unit housing in appropriate locations through infilling
along existing streets, new subdivisions and adaptive reuse of existing buildings in mixed-use areas.
2.6
Transportation
Goal:
-
Maintain an efficient transportation network to serve motorized and non-motorized transportation needs in
Gander.
Objectives:
-
Maintain safe and efficient access to all residential developments, commercial establishments and
recreational areas.
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Ensure new development provides for traffic circulation that avoids congestion and hazardous intersections.
-
Ensure the needs of disabled and elderly residents are appropriately addressed in the planning and design
of streets, sidewalks, crosswalks, parking areas and trail systems.
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Ensure main traffic arteries do not become overly congested to reduce traffic efficiency and safety for
pedestrians and motorists.
2. 7
Open Space and Recreation
Goal:
-
Maintain built facilities and natural areas to accommodate a range of active and passive recreational needs
of Gander residents.
Objectives:
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Encourage public participation in the planning of open space and conservation lands.
-
Encourage and support recreational groups and community organizations in organizing sports, recreation
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Municipal Plan 2019 - 2029 (Final)
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and festival activities and events.
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Protect and enhance Gander's trail network for the recreational enjoyment and safety of non-motorized and
motorized users.
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Protect and enhance public access to the Town's freshwater shorelines.
2.8
Culture and Heritage
Goal:
-
Develop and protect the Town's cultural and natural heritage.
Objectives:
-
Support efforts to showcase Gander's history and culture.
-
Protect and enhance sites and buildings important to showcasing the Town's built and natural heritage,
including the old Townsite, the historic airport terminal, key lookout sites and nature trails.
2.9
Capital Works
Goals:
-
Provide an acceptable and consistent level of water, sewer and storm sewer services.
-
As much as possible, utilize existing capacity prior to investing in new streets and municipal infrastructure.
Objectives:
-
Maintain a municipal water system capable of providing domestic water and fire flows to all feasible areas.
-
Provide a system of sanitary sewer trunk mains, local service lines and wastewater treatment capable of
accommodating existing and future sewage flows.
-
Improve stormwater management to control erosion and protect properties, watercourses and
environmentally sensitive areas.
-
As much as possible, ensure the Town's long-term physical growth remains contiguous to existing streets
and infrastructure.
2.10 Governance
Goals:
-
Provide municipal services and administration effectively, efficiently and equitably to all residents within the
fiscal capacity of the Town.
-
Collaborate with other levels of government, community organizations and the business community to
facilitate opportunities to improve local governance and municipal services.
Objectives:
-
Encourage public interest and participation in municipal governing processes, including Council elections,
committee activities and public participation in decision-making.
-
Deliver municipal administration and services effectively, efficiently, openly and within the Town's fiscal
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Town of Gander
Municipal Plan 2019 - 2029 (Final)
Wood Project #: TF1770707
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Ensure the Town is governed in compliance with relevant legislation such as the Municipalities Act and the
Urban and Rural Planning Act, 2000.
2.11
Municipal Finance
Goal:
-
Manage municipal expenditures and revenues to provide municipal services within a framework of long-
term financial stability.
Objectives:
-
-
-
Manage municipal expenditures and debt burdens in a prudent manner according to the Town's capacity .
Encourage an enlarged economic base in the Town to generate additional tax revenues .
Ensure that growth-related capital costs for new developments do not place an undue burden on residents .
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Municipal Plan 2019 - 2029 (Final)
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3.0
COMMUNITY WIDE POLICIES
This section provides the policy framework for the planning of Gander as expressed in the Goals and Objectives
outlined in Section 2.0.
3.1
Policy Framework
The overriding thrust of the Municipal Plan is to ensure the continuance of a vibrant, efficient and sustainable
community and to maintain the Town's attractive character based on a compatible mix of built-up land uses and
green space. It is important to provide continuity with the past, achieve the Town's development vision, maintain
a distinct identity and contribute to environmental, economic, social and financial sustainability.
To accomplish the overall intent of the Plan, the following policy initiatives are put forward:
(1) Areas that can be developed and serviced at the most reasonable long-term costs to the Town will be given
priority for the Town's growth and expansion. Highest priority is placed on the infilling of vacant land along
serviced streets. Second priority is placed on areas that are affordably close to existing streets and piped
services. Development will be restricted in areas that would entail prohibitive or unnecessary costs to
develop and maintain new infrastructure and provide services.
(2) Prominent features that help to preserve community character, such as heights of land, waterfronts, open
space and scenic vistas, will be preserved.
(3) A high standard will be maintained for both the natural and built environments, particularly the protection of
environmentally sensitive resources such as shorelines, wetlands, steep slopes, archaeological resources and
historic areas.
(4) Streets and infrastructure will be designed to achieve a high standard with respect to safety, traffic and
pedestrian mobility, water and sewer distribution and ease of maintenance.
(5) Capital works will be undertaken in an efficient, financially prudent and environmentally sustainable manner.
3.2
General Land Use Policies
This section provides information on general land use policies that apply to all areas of the Town of Gander.
3.2.1 General Layout of Town
(1)
Council will encourage the consolidation of development in areas that are economical to connect to existing
roads and service with water and sewer.
(2)
Council will give priority to infilling vacant serviced land over the development of new streets and
infrastructure.
(3)
Council may refuse proposed developments in locations where municipal services are inadequate or it
would be uneconomic to provide and maintain municipal services.
(4)
Council will require land developments to include reasonable measures to reduce stormwater runoff from
the site, including as necessary the setting-aside of green areas for stormwater control and infiltration.
(5)
Council will work with the Gander International Airport Authority and Transport Canada to facilitate
municipal expansion into adjacent Airport lands.
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3.2.2 Compatibility of Uses
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As much as possible, Council will ensure that new developments will not negatively affect existing land uses
through the creation of hazards or nuisances such as noise, dust, odour, congestion, or unsightly appearance.
3.2.3 Non-Conforming Uses
In accordance with the Urban and Rural Planning Act, 2000, a use of land that legally existed at the time of the
registration of this Municipal Plan shall be allowed to continue irrespective of its conformity to the Plan or
Development Regulations. Specific provisions concerning legal non-conforming uses are set out in the
Development Regulations.
3.2.4 Land Development and Subdivision Proposals
General policies apply to all land development and subdivision proposals in Gander.
Site Suitability
When reviewing a proposed land development, the site's suitability in terms of soils, geology, location of
watercourses and wetlands, steepness of grades and overall environmental sensitivity will be considered. When
considering approval, Council will ensure that the development will have minimal negative effects on water
resources and surrounding properties.
Professional Review
If in Council's opinion, a proposed development could result in undesirable environmental effects, high
infrastructure and servicing costs, or constraints to the development of nearby properties, Council may require
an assessment of the proposed development by a certified engineer.
Among other matters, the review shall evaluate the adequacy of proposed site grading, drainage, stormwater
control and landscaping, as well as the potential of the development to negatively affect nearby properties and
bodies of water due to storm drainage, erosion, or pollution.
Land Needed for Environmental Protection
When approving a development, Council may require portions of the proposed site to be set aside from
development or vegetation clearing in order to reduce adverse environmental effects and control stormwater
drainage and erosion. Council's authority to require land to be set aside for environmental purposes derives from
Section 13(3) of the Urban and Rural Planning Act 2000. Land needed for such purposes will not be included in
the calculation of land for public use as set out in Section 37(1) of the Act.
Land for Public Use
In accordance with Section 37 of the Act, for each subdivision approval, Council shall require the developer to
convey an area of land to the Town for open space or other public use. This conveyance would be equal to up to
ten per cent of the gross area of the land to be developed. Land to be set aside must be high quality land
suitable for the purpose.
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Coordination with Surrounding Development
Subdivisions and other developments will be coordinated with surrounding existing and proposed
developments, the street network and municipal infrastructure. Such developments may be required to provide
for access to adjacent undeveloped lands.
Special precautions and mitigations will be taken to ensure new developments will not cause undue congestion
and/or safety problems along collector and arterial roads. In particular, development proposals in the vicinity of
Cooper Boulevard, Magee Road and the Trans Canada Highway will be evaluated to ensure congestion and
safety issues are avoided or minimized.
Municipal Services and Access
The scale of new development must be appropriate with the provision of municipal services and street access.
Council will ensure that a new development will make efficient use of existing streets and infrastructure and will
not create unreasonable servicing demands or costs. If Council deems that a proposed development cannot be
efficiently connected to or service by existing infrastructure, it will refuse the development.
Public Input
Council will seek input from nearby residents and landowners where it deems the development might have
possible significant effects on the surrounding area.
Council Decision
Council will review each development application on a case by case basis and may:
(1)
Approve the development as proposed,
(2)
Approve the development subject to certain terms or conditions,
(3)
Defer a decision subject to more detailed information or requested modifications to the proposal, or
(4)
Not approve the development if it deems that it would be unsuitable for the location, would be prohibitively
expensive to service or maintain, or would create environmental or other problems that cannot be
sufficiently corrected or mitigated.
Subdivision Agreement
Council shall require an applicant to enter into a subdivision agreement with the Town as a condition of
approval.
3.2.5 Consolidation and Infill of Serviced Areas
(1)
Council will encourage intensification of development in areas that are accessible to piped water and sewer
services. This can occur through infilling of vacant land along existing roads and keeping new street
development in close proximity to existing infrastructure.
(2)
Site plans for infill development and land use intensification must meet the approval of Council.
Developments must be compatible with the existing neighbourhood character and in accordance with
Council's development standards with respect to lot size, frontages, road widening, alignments, installation
of municipal services, environmental protection, retention of open space and matters concerning current or
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future public works.
(3)
Gander's best opportunity for efficient physical growth is toward the northeast, however this land is located
with Gander Airport boundaries. Other options for contiguous expansion are limited by natural constraints,
particularly extensive wetlands to the west and northwest.
3.2.6 Public Streets
Subject to conditions to mitigate environmental impacts, new public streets are generally permitted in all areas
except within the Environmental Protection and Floodway designations.
3.2.7 Public Access to Watercourses
Council will ensure that sufficient and appropriate public access is maintained to Gander Lake and other
watercourses provided that such access does not unreasonably impinge on the use and enjoyment of abutting
private lands. As Gander Lake is a protected water supply under the Water Resources Act any developments are
subject to review and permitting under the Act.
3.2.8 Adaptive Re-use of Existing Buildings and Properties
Council will encourage the adaptive reuse of existing buildings and properties for land uses that are permitted
within the designation and would be compatible with nearby existing land uses. The older downtown area will be
a special target for such efforts.
3.2.9 Heritage and Archaeological Resources
(1)
Council will encourage the preservation of individual sites and buildings that have archaeological or
heritage significance.
(2)
Archaeological sites are protected under the Historic Resources Act. If a development application is received
in the vicinity of a known site, it will be referred to the Provincial Archaeology Office for comments before
approval is granted. If a new site is discovered, development will be interrupted and the Provincial
Archaeology Office will be consulted on whether or how the development should be permitted to proceed.
3.2.10 Discretionary Uses
Council may decide that a land use should be set out as a discretionary use in a particular zone in the
Development Regulations, where:
(1) the suitability of the use is not clear and may depend on the land use characteristics and circumstances of
individual locations within the zone,
(2) Council determines that the use could negatively affect the predominant uses of the zone and, in order to
mitigate this impact, it would be desirable to consult with the public prior to issuing, issuing subject to
conditions, or refusing a development permit, or
(3) it is necessary to attach conditions to an approval to ensure that the use is developed in a way that is
compatible with nearby uses and the predominant uses of the zone.
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3.2.11 Mineral and Petroleum Exploration
(1)
Subject to other provisions of this Municipal Plan, mineral and petroleum exploration that is not classed as a
development (by virtue of drilling, appreciable ground disturbance, or construction of access roads) may be
permitted anywhere in the Planning Area, provided that the Town is given previous notice.
(2)
In accordance with Sections 12 and 13 of the Mineral Act, no exploration of any type will be permitted on
privately owned land without the consent of the landowner.
(3)
Mineral and petroleum exploration that is classed as a development may be permitted in certain
designations, provided that adequate provision is made for environmental protection, site reinstatement,
landscaping, buffering, or mitigations of impacts on residential, commercial, industrial, institutional and
recreational areas.
(4)
Mineral and petroleum exploration will be permitted only if all necessary Provincial approvals have been
obtained.
3.2.12 Mineral Working
(1)
Mineral working operations, where permitted, will be subject to terms and conditions to minimize impacts
on environmentally sensitive areas and nearby existing development.
(2)
Mineral working operations will take measures to minimize negative impacts on water resources and other
sensitive environmental resources.
3.2.13 Forest Resources and Trees
(1)
Forests will be preserved and protected for the production of timber-based products as well as the
realization of important non-timber values such as fish and wildlife habitat, water quantity and quality,
biodiversity, scenery, recreation and tourism.
(2)
Harvesting of forests and trees will respect the Town's objectives for environmental protection, preservation
of scenery, outdoor recreation, stormwater control and drinking water protection.
(3)
In order to preserve a site's natural characteristics and attractiveness for development, Council may restrict,
or set conditions on, tree removal in areas planned for future residential development.
3.2.14 Utilities
Utility Easements and Facilities
Utility facilities such as transmission lines, stormwater drains, water and sewer pipes and treatment facilities,
energy generation facilities and pollution control devices, will be permitted in most land use designations subject
to conditions set by Council. In the Environmental Protection, Open Space, and Future Development Area zones
of the Development Regulations, approval of such utilities will be at Council's discretion.
Lands within the Utility designation are set aside exclusively for major utilities that cannot be encroached upon
by incompatible development. Examples include water and wastewater treatment plants, electrical substations,
solid waste sites, and major communication towers. Approval of utilities within this designation will be at
Council's discretion.
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Alternative Energy Facilities
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Wind, small hydro and solar energy generation facilities may be permitted in any land use designation subject to
conditions set by Council, including the following:
(1)
The location and design of such utilities shall take into consideration potential impacts on nearby land uses,
persons and the natural environment.
(2)
Wind generators permitted within built-up areas will be limited to single turbines designed to serve
individual properties.
(3)
To provide for adequate safety and comfort of persons and properties, Council will ensure that there is an
adequate separation distance between any type of wind generator and nearby buildings and structures.
I
(4)
Energy utilities are subject to required approvals by relevant provincial and federal departments.
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3.2.15 Provision for the Disabled and Elderly
Council will consider the mobility needs of disabled and elderly residents in the planning and design of
municipal streets, buildings and recreational facilities and when approving commercial, public and large
residential buildings and facilities.
(1) Council will endeavor to improve accessibility standards for persons with physical or sensory disabilities.
(2) All commercial, public and institutional buildings must be constructed in conformity with the Buildings
Accessibility Act.
(3) Design and construction of streets, sidewalks, crosswalks, park facilities and other municipal facilities will
incorporate accessibility standards and best practices.
3.2.16 Provisions Related to Airport Impacts
Due to Gander Airport operations, special provisions are necessary to minimize safety and noise hazards from
aircraft flight activities.
(1) Design and construction of new buildings and structures will conform to Airport Building Height Constraints
as specified in the Development Regulations.
(2) New residential development will conform to guidelines related to the 30 Noise Exposure Forecast Contour
as shown on the Future Land Use and Zoning maps.
3.3
General Environmental Policies
Conservation values are intrinsic to this Municipal Plan. High priority is given to protecting sensitive areas and
preventing stormwater impacts, soil erosion and watercourse sedimentation. Land use decisions will duly
consider environmental sustainability and biodiversity objectives.
3.3.1 Protection of Sensitive Areas
Environmentally sensitive lands, including the water supply area, watercourses, riparian areas, wetlands,
protected waterfowl habitat in Habitat Management Units designated under Eastern Habitat Joint Venture, steep
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slopes such as those on the north side of Gander Lake, wet and unstable soils and other important habitat, will
be protected from potentially damaging development.
3.3.2 Consideration of Environmental Impacts
Potential environmental effects will be considered when reviewing development applications. At its discretion, or
in accordance with other statutory requirements, Council may refer development proposals for advice and/or
regulatory approval to government departments such as Municipal Affairs and Environment, Service
Newfoundland and Labrador, Health and Community Services, Fisheries and Oceans Canada and Environment
Canada.
3.3.3 Soils and Drainage
Development shall be permitted only on lands with soil and drainage conditions that, in the opinion of Council,
are suitable for the proposed use.
3.3.4 Watercourse and Wetland Protection
(1)
Development in the vicinity of a watercourse or wetland will be carried out in a manner that minimizes the
potential for environmental impacts, protects natural drainage and preserves existing public access to the
water.
(2)
Conservation buffers will be established to protect watercourses from stormwater discharges, erosion,
sedimentation and pollution.
(3)
Where it deems that a proposed development may affect a wetland, at its discretion, Council may:
(a) require the developer to have the wetland delineated by a qualified consultant,
(b) establish a sufficient buffer from the edge of the wetland in which development may not be
permitted,
(c) require such other condi
0
tions or restrictions to protect the wetland and/or
(d) refuse to approve the development if it believes that identified impacts cannot be sufficiently
minimized or mitigated.
3.3.5 Unstable Geology and Soils
Development in areas that are environmentally sensitive or hazardous due to wet or unstable soils, high water
table, or unstable geological conditions, may be restricted or subjected to terms and conditions to reduce
potential impacts.
3.3.6 Shorelines
Development near lake and river shorelines shall be carried out in a manner that minimizes potential
environmental impacts, protects natural features and preserves existing public access to and along the shoreline.
3.3.7 Steep and Unstable Slopes
Steep and unstable slopes may be subject to development restrictions or other conservation measures designed
to minimize environmental impacts and hazards to humans and properties resulting from development.
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3.3.8 Storm Drainage
Development will not be permitted in a manner that causes excessive increases in stormwater runoff such that it
could be detrimental to adjacent properties, unstable slopes, nearby watercourses, or other sensitive areas.
In areas where there is concern that development may contribute to excessive increases in stormwater runoff,
Council may require developers and landowners to:
(1) Set aside undeveloped land where stormwater can be discharged to naturally infiltrate into the soil.
(2) Maintain vegetated buffers between stormwater drainage outlets and watercourses to minimize direct
discharges into watercourses.
(3) Conserve existing trees or plant new trees and shrubs to promote soil infiltration and capture sediments.
(4) Channel runoff to gardens and low-lying areas on the development site and on individual lots.
(5) Take advantage of the topography to reduce storm drainage, for example, retain natural depressions in the
landscape to accumulate runoff and promote soil infiltration.
(6) Re-establish vegetative cover immediately on gravel surfaces, banks, drainage ditches and other areas
disturbed by construction activity.
3.3.9 Habitat Conservation
Council decisions affecting wetlands and known waterfowl habitat will be guided by the Gander Habitat
Conservation Plan, which is the basis of a Stewardship Agreement between the Town and the Province. Council
will ensure existing and future Habitat Management Units are environmentally protected. In this current
Municipal Plan, these include the Cobbs Pond, Northwest Bog, Whitman's Pond, Peyton's Pond and Benton
Management Units. On the Future Land Use maps, lands within the Cobbs Pond Management Unit are
designated Open Space and Conservation and all land within the other four Units is designated Conservation.
3.3.10 Climate Change
Climate change is forecast to generate more precipitation and more frequent extreme weather events and
consequently increased shoreline flooding and erosion. This Municipal Plan has considered climate change
factors in designating land for future development in proximity to watercourses and wetlands.
3.3.11 Gander Lake Protected Water Supply Area
The Gander Lake Protected Water Supply Area is designated under the Water Resources Act. The protected area
boundaries include lands inside and outside of the Town's Planning Area. Inside the Planning Area, the
boundaries of the Protected Water Supply Area are delineated on the Future Land Use maps.
Development within the Protected Water Supply Area will conform to the guidelines and requirements of the
Water Resources Division. Development applications will be referred to the Gander Lake Watershed Monitoring
Committee for review and recommendations.
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3.3.12 Use of Discretionary Authority
Council may exercise its discretionary authority to prohibit or set conditions on development when, in its
opinion, the development might have undesirable environmental impacts, for example, excessive run-off onto
adjacent properties, flooding, soil erosion, siltation of streams or exposure of contaminated soils.
3.4
Infrastructure Policies
3.4.1 Water Supply System
(1) Council will maintain its water supply system, including intake, storage tanks, treatment plant and
distribution system, in good working order to ensure the availability of an adequate quantity and quality of
water for residents, businesses and public facilities.
(2) Adequate fire flows will be maintained in all areas served by municipal water.
3.4.2 Sanitary Sewer System
Council will maintain the Town's sanitary sewer system in good working order.
3.4.3 Stormwater Management
Council will maintain storm drainage ditches, storm sewers and related facilities in good working order.
3.4.4 Water and Sewer Requirements for Land Development
(1) All water and sewer infrastructure associated with new land development must meet the minimum standards
of the Town and be approved by the Town engineer.
(2) The costs of installing water and sewer services and connecting new lots to the municipal system will be the
sole responsibility of the developer.
3.4.5 Transportation
The transportation system in Gander includes a hierarchy of arterial, collector and local roads, as well as public
trails and walkways. Arterial and collector roads are shown in Table 3-1.
Table 3-1: Gander Urban Street Classification
Major Arterial
I Minor Arterial
I Collector
Trans Canada Highway
Cooper Boulevard
Airport Boulevard/James
Caldwell Street
Boulevard
Gander Bay Road
Magee Road
Bennett Drive
Cobham Street
Briqqs Street
Memorial Drive
Byrd Avenue
Morgan Drive
Edinburgh Avenue
Raynham Avenue
Elizabeth Drive
Rowsell Boulevard
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Consideration of Environmental Impacts
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New highways, streets, water crossings and associated infrastructure will be located and constructed to minimize
adverse impacts on environmentally sensitive areas and resources.
Arterial Roads
(1) Purpose
The primary purpose of an arterial road is to provide safe and efficient traffic flow for vehicles travelling to and
through the Planning Area. A secondary purpose is to distribute traffic within the Planning Area.
(2) Description
The Trans Canada Highway (Route 1) and the Gander Bay Road (Route 330) are Gander's major arterial roads.
Magee Road and Cooper Boulevard are its minor Arterial Roads.
(3) Individual Accesses
Council will use its discretionary authority if necessary, to prevent development of any driveway or other private
access along Routes 1 and 330 where it deems that access would adversely affect traffic safety and/or efficiency.
In addition, Council will not approve an access along these routes that has not first been approved by the
Department of Transportation and Works and Service Newfoundland and Labrador.
Provision for the Disabled and Elderly
Streets, sidewalks, public walkways, parking areas and access points to public and commercial buildings will be
designed to facilitate easy access and movement by disabled and elderly persons.
Collector Roads
(1) Purpose
The primary purpose of collector roads is to distribute traffic between major points and local streets within the
Town.
(2) Description
Collector roads in the Gander Planning Area include:
Airport Boulevard/James Street
Bennett Drive
Caldwell Street
Cobham Street
Edinburgh Avenue
Elizabeth Drive
(3) Individual Accesses
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Memorial Drive
Morgan Drive
Ogilvie Street
Raynham Avenue
Roe Avenue
Rowsell Boulevard
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Access to abutting properties on collector roads will not be restricted but will be properly planned to ensure they
do not impede safety and traffic efficiency.
Local Roads
(1) Purpose
Local roads are intended to serve properties located on the street and generally are not used by traffic except to
access these properties and adjoining local streets.
(2) Description
Local roads include all remaining streets not referred to as arterials or collectors.
(3) Future Road Connections
Council will ensure that appropriate street reservations are reserved along local roads to provide for future
connections to backland areas with development potential.
Street Design and Construction
(1) The location, design and construction of public streets will meet Council's minimum requirements for public
safety, traffic efficiency, access to adjoining land and construction quality.
(2) Except where it is not physically feasible, new streets shall be located such that there will be sufficient land to
develop lots on both sides in accordance with the development standards of the zone.
(3) The layout of a new street will provide adequate reservations to accommodate road extensions and access to
backland areas for future development.
(3) The costs of constructing and connecting new streets to the municipal street system will be the sole
responsibility of the developer.
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4.0
LAND USE DESIGNATIONS
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The Town's growth and development will be managed by designating lands within the Planning Area according
to broad future land use categories (Table 4-1). These designations are shown on Future Land Use Maps 1, 2 and
3. Policies outlined in this section specify Council's intent related to land use and forms of development in each
of the following land use designations.
Table 4-1: Future Land Use Designations
Future Land Use Designation
I Zones
I Abbreviation
Conservation
· Environmental Protection
EP
Residential
Residential Low Density
RLD
Residential Medium Density
RMD
Residential High Density-1
RHD-1
Residential High Density-2
RHD-2
Residential Mini-Home
RMH
Residential Rural
RR
Commercial
Town Centre
TC
Commercial General
CG
Commercial Shopping Centre
csc
Commercial Highway
CH
Commercial Local
CL
Industrial
Commercial-Light Industrial
CLI
Industrial General
IG
Tourism Recreation
Tourism Recreation
TR
Public Institutional
Public Institutional
Pl
Open Space
Open Space
OS
Open Space Recreation
OSR
Utility
Utility
UT
Highway Corridor
Highway Corridor
HC
Rural
Rural
RU
Residential Seasonal
RS
Future Development Area
Future Development Area
FDA
Airport
Airport
AP
4.1
Conservation
The overriding goal of the Conservation designation is to protect environmentally vulnerable and important
lands and natural resources including Gander's drinking water supply, other surface water resources, wetlands,
steep slopes and waterfowl habitat.
4.1.1 Land Use Zones
The Development Regulations will establish one land use zone within the Conservation designation (Table 4-2).
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Table 4-2: Conservation Designation - Land Use Zones
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Zone
I intent
I Application
Environmental Protection
Environmental Protection
Protect watercourses, wetlands,
waterfowl habitat, flood risk areas,
steep slopes and other sensitive
lands. Provide highest level of
source water protection within the
municipal water supply area.
(1) Conservation uses are permitted.
Protective watercourse buffers
within the Gander Lake Protected
Water Supply Area and along other
rivers, lakes, streams and wetlands.
Protects steep slopes and
desiqnated waterfowl habitat.
(2) At its discretion, Council may permit open space uses such as walking trails and boardwalks in appropriate
locations. It may also permit recreational docks in appropriate locations. Before approving such
developments, it must be clearly demonstrated to Council that potential adverse effects on the site, adjacent
water bodies and aquatic and waterfowl habitat will be minimal. Also, Council must be satisfied that a
proposed development will not unreasonably impede public access to or along shorelines.
(3) At its discretion, Council may permit transportation developments, for example, road crossings of streams,
bridges, culverts and stormwater drains, but only if alternative locations are not feasible and Council
considers the proposed development to be in the public interest. Council shall consult with the Department
of Municipal Affairs and Environment, Fisheries and Oceans Canada and other relevant agencies before
approving any such development.
(4) Excavation and infilling of land and water will not be permitted unless it is to redirect stormwater or is a
public work that has been approved by the Water Resources Division of the Department of Municipal Affairs
and Environment.
4.2
Residential
Areas are designated as Residential to preserve the amenity of existing residential areas and accommodate new
housing needs. Existing residential development consists primarily of single detached dwellings. Other types of
development include mini-home subdivisions, apartment buildings and double and row house developments.
4.2.1 General Intent
The general intent of the Residential designation is to facilitate housing for all residents regardless of age,
income, abilities and family status and to ensure development proceeds in a way that maintains a pleasant
residential environment. By permitting a variety of housing forms, it is Council's objective to ensure housing
remains affordable for all socio-economic groups. Residential development will be managed in a manner that
utilizes infrastructure efficiently and preserves and protects sensitive environments and public open space.
4.2.2 Guiding Principles
In guiding residential growth, Council will endeavour to achieve a balance between the following principles:
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(1) Future development will maintain the Town's natural and scenic character.
(2) Future development will accommodate an appropriate mix of housing types to meet changing market
conditions and socio-demographic needs of residents.
(3) Future development will proceed in a way that ensures municipal infrastructure and services can be delivered
and maintained at a reasonable cost to taxpayers.
4.2.3 Land Use Zones
The Development Regulations shall establish six land use zones within the Residential designation (Table 4-3).
Table 4-3: Residential Designation - Land Use Zones
Zone
I intent
I Application
Residential Low Density
Recognize existing and
Existing neighbourhoods and future
accommodate future low-density
subdivisions.
neighbourhoods of single-detached
dwellings.
Residential Medium
Recognize existing and
Existing neighbourhoods and future
Density
accommodate future medium-
subdivisions.
density neighbourhoods of
predominantly single-detached
dwellings and also double and
multi-unit dwellinqs.
Residential High Density-1
Recognize existing and
Existing high-density single-
accommodate future high-density
dwelling neighbourhoods as well as
developments including single
future single and multi-unit
dwellings, apartment buildings,
developments.
double dwellings and row housing.
Residential High Density-2
Recognize existing and
Scattered existing high-density
accommodate future high-density
housing areas as well as new
developments including apartment
development.
buildings, double dwellings, row
housing and residential care and
retirement housinq.
Residential Mini-Home
Recognize existing mini-home
Existing mini-home
neighbourhoods and accommodate
neighbourhoods and new
needs for future mini-home and
subdivisions for mini-homes and
tiny home developments.
tiny houses.
Residential Rural
Recognize existing rural residential
Existing and future unserviced
development and provide for
residential and compatible uses on
limited complementary commercial
Magee Road and Gander Bay Road.
uses and agriculture.
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4.2.4 Residential Low Density Zone
The Residential Low Density zone applies to only a few existing residential areas in Gander, namely two sections
of Memorial Drive, the Towers Avenue area and Richman Place. Future zoning of low-density subdivisions will
depend on market demand and specific development proposals. Single detached dwellings will remain the only
housing form in this zone, however applications for residential care homes may be considered.
Land Use
(1) Permitted housing the Residential Low Density zone includes single dwellings only.
(2) Conservation, open space, transportation and utilities are complementary permitted uses.
(3) Residential uses that may be permitted at Council's discretion include secondary suites, subsidiary
apartments and residential care homes.
(4) At Council's discretion, a home-based business may be permitted in accordance with the Gander Home
Based Business Regulations.
(5) Other uses that may be permitted at Council's discretion include bed and breakfasts, childcare services,
community gardens, domestic sawmills, group care centres, personal livestock uses and recreational open
space.
(6) At Council's discretion, antennas may be permitted in compliance with Federal regulations.
4.2.5 Residential Medium Density Zone
The Residential Medium Density zone applies to most existing residential areas in Gander. Single dwellings will
remain the predominant housing form in this zone. Higher density housing may be encouraged as well in
appropriate locations. Highest priority for development will be to optimize the use of existing infrastructure
through infill along existing streets and locating new subdivisions-in areas that can be economically connected to
existing streets and piped services.
Land Use
(1) Permitted housing the Residential Medium Density zone includes single and double dwellings as well as
secondary suites and subsidiary apartments.
(2) Conservation, open space, transportation and utilities are complementary permitted uses.
(3) Residential uses that may be permitted at Council's discretion include apartment buildings, lodging houses,
residential care homes, retirement homes and row houses.
(4) At Council's discretion, a home occupation may be permitted in accordance with the Gander Home Based
Business Regulations.
(5) Forestry may be permitted at Council's discretion in areas where built-up development is not likely to occur
for several years.
(6) Other uses that may be permitted at Council's discretion include bed and breakfasts, childcare services,
community gardens, group care centres, neighbourhood centres, personal livestock uses and recreational
open space.
(7) At Council's discretion, antennas may be permitted in compliance with Federal regulations.
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4.2.6 Residential High Density-1 Zone
The Residential High Density-1 zone currently applies to the Ogilvie Street area in the west of Gander, which is
dominated by single dwellings on small lots. No new areas for such small lot development are identified,
however, this zone may be expanded to other areas if warranted by demand and/or affordable housing needs.
Land Use
(1) Permitted housing the Residential High Density-1 zone will include single, double and row houses.
(2) Conservation, open space, transportation and utilities are complementary permitted uses.
(3) Residential uses that may be permitted at Council's discretion include apartment buildings, lodging houses,
residential care homes, retirement homes, secondary suites and subsidiary apartments.
(4) At Council's discretion, a home occupation may be permitted in accordance with the Gander Home Based
Business Regulations.
(5) Other uses that may be permitted at Council's discretion include, bed and breakfasts, childcare services,
community gardens, convenience stores, group care centres, homeless shelters, neighbourhood centres and
recreational open space. At Council's discretion, antennas may be permitted in compliance with Federal
regulations.
4.2.7 Residential High Density-2 Zone
The Residential High Density-2 zone applies to various existing areas characterized by a concentration of
apartment buildings, row houses, residential care homes and/or retirement homes. While no new areas for such
high-density development are identified, they will be encouraged as necessary to accommodate needs for
residential care, retirement and affordable single and multi-unit housing.
Land Use
(1) Permitted housing the Residential High Density-2 zone will include single, double and row houses, secondary
suites and subsidiary apartments.
(2) Conservation, open space, transportation and utilities are complementary permitted uses.
(3) Apartment buildings, collective residential, residential care homes and retirement homes may be permitted
at Council's discretion.
(4) At Council's discretion, a home occupation may be permitted in accordance with the Gander Home Based
Business Regulations.
(5) Other uses that may be permitted at Council's discretion include bed and breakfasts, childcare services, clubs
and lodges, community gardens, convenience stores, group care centres, homeless shelters, neighbourhood
centres and recreational open space.
(6) At Council's discretion, antennas may be permitted in compliance with Federal regulations.
4.2.8 Residential Mini-Home Zone
The Residential Mini-home zone applies to existing mini-home subdivisions located on Gray Avenue, Viscount
Crescent and Curtis Avenue. Mini-homes are the prevailing form of development on these streets, although
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there are also single and semi-detached dwellings. The intent of the zone is to accommodate the development
of mini-homes as an affordable housing form. Depending on demand this zone may also permit development of
subdivisions for tiny homes, a relatively new housing form.
Land Use
(1) Permitted housing in the Residential Mini-home zone will include mini-homes.
(2) Conservation, open space, transportation and utilities are complementary permitted uses.
(3) Double dwellings, mobile homes, row houses and tiny houses may be permitted at Council's discretion.
(4) At Council's discretion, a home occupation may be permitted in accordance with the Gander Home Based
Business Regulations.
(5) Other uses that may be permitted at Council's discretion include childcare services, community gardens,
convenience stores, neighbourhood centres and recreational open space.
(6) At Council's discretion, antennas may be permitted in compliance with Federal regulations.
4.2.9 Residential Rural Zone
The Residential Rural zone takes in the Gander Bay Road area and some parts of the Magee Road area.
Properties in these areas do not have piped municipal services.
Land Use
(1) Permitted housing the Residential Rural zone include single dwellings, secondary suites and subsidiary
apartments.
(2) Conservation, open space, transportation and utilities are complementary permitted uses.
(3) At Council's discretion, a home occupation may be permitted in accordance with the Gander Home Based
Business Regulations.
(4) Other uses that may be permitted at Council's discretion include arts and craft studios, bed and breakfasts,
campgrounds, childcare services, community gardens, crop agriculture, domestic sawmills, group care
homes, homeless shelters, kennels, neighbourhood centres, personal livestock uses, places of worship,
recreational open space, tourist cottages and veterinary uses.
(5) At Council's discretion, antennas may be permitted in compliance with Federal regulations.
4.3
Commercial
The Commercial designation includes existing commercial and mixed development areas along with proposed
future development areas. These include established main areas of commercial activity in the vicinity of Elizabeth
Drive, Airport Boulevard, Cooper Boulevard, Roe Avenue and the Trans Canada Highway. It also includes various
smaller commercial areas dispersed throughout the Town.
4.3.1 General Intent
In keeping with Council's goal of increased economic activity, areas are designated Commercial to facilitate
business development and enhance Gander's position as a regional service centre and transportation hub.
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Commercial areas allow for a range of commercial uses, ranging from retail and service industries, highway
services, air traffic control services, visitor accommodations and retail-based light industrial services.
4.3.2 Compatibility with Neighbouring Uses
New development will be permitted to the extent that it is a suitable fit with surrounding existing development
and will not unreasonably affect nearby residential areas with respect to noise, dust, glare, vibration, smell, traffic,
aesthetics and related factors.
Council may impose conditions to require a commercial or industrial use to maintain an attractive appearance
and minimize adverse impacts on existing uses, including proper site layout, buffering, screening and control o_r
restriction of potentially noxious or hazardous activities. Required screening may include fencing, berms and/or
appropriate plantings of trees and shrubs.
Council V>:'ill ensure that a high standard of building design and appearance is maintained for all development in
this designation.
4.3.3 Off-Street Parking and Loading
Adequate off-street parking and loading facilities shall be provided to Council's satisfaction.
4.3.4 Area Plan
Council will require an Area Plan to be approved before permitting development of new streets in the
Commercial designation.
An Area Plan will be a professionally prepared document with text and accompanying maps. It will be reviewed
by Council to determine conformity with the Municipal Plan and Development Regulations. Prior to approving an
Area Plan, Council at its discretion may give public notice, make the plan available for public review and consider
all objections and representations received.
4.3.5 Land Use Zones
The Development Regulations shall establish five land use zones within the Commercial designation (Table 4-4).
Table 4-4: Commercial Designation - Land Use Zones
Zone
I intent
I Application
Town Centre
Maintain and enhance Gander's
A compatible mix of commercial
downtown area by promoting
and residential uses to renew the
redevelopment of vacant and
potential of the old downtown area
underused buildings and a stronger
to function as a hub of community
storefront-based, pedestrian-
and commercial activity.
oriented environment.
Commercial General
Recognize existing general retail
Existing and future commercial
sites and accommodate future retail
lands in vicinity of Airport
development needs.
Boulevard, Cooper Boulevard,
Elizabeth Drive, Roe Avenue and
the east end of Memorial Drive.
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Zone
Commercial Shopping
Centre
Commercial Highway
Commercial Local
I intent
Recognize existing large retail
outlets and provide for additional
future anchor store developments.
Recognize the existing highway
service area and provide for future
development.
Maintain and enhance small
commercial developments that
serve nearby residential areas.
4.3.6 Town Centre Zone
wood.
I Application
Existing commercial lands in vicinity
of Airport Boulevard, Cooper
Boulevard, Roe Avenue. Provide for
future anchor store development in
the vicinity of Cooper
Boulevard/Roe Avenue.
Existing commercial
accommodations and highway
services area along the TCH.
Existing convenience stores and
strip malls with small retail and
service outlets.
The Town Centre zone takes in the older downtown area on both sides of Elizabeth Drive as well as the north
side of Airport Boulevard, taking in the Town Hall, the old shopping centre, former post office, Salvation Army
Church, Arts and Culture Centre, Community Centre and Gander Curling Club. Council's objective for this area is
to promote an enhanced mix of pedestrian-oriented commercial development, public and community uses,
along with residential apartments over groundfloor commercial uses.
The Town Centre designation will promote a compatible mix of low-impact commercial, community and
residential uses. The designation will allow for development of pedestrian-oriented retail and service outlets,
offices, restaurants, pubs, visitor accommodations, assembly uses, open space and other compatible uses.
Land Use
(1) Permitted retail and service uses will include communication services, convenience stores, general services,
indoor markets, medical services, offices, personal and professional services, shops, take-out food services
and veterinary services.
(2) Complementary permitted uses include conservation, open space, transportation and utilities.
(3) Other permitted uses include childcare services, cultural and civic and general assembly.
(4) Residential uses permitted at Council's discretion include apartments over groundfloor uses, apartment
buildings and collective residential.
(5) Other uses that may be permitted at Council's discretion include amusement uses, cannabis retail outlets,
catering, clubs and lodges, commercial accommodations, community gardens, drinking establishments,
educational uses, emergency services, homeless shelters, indoor and outdoor assembly, outdoor markets,
places of worship, recreational open space, shopping centres and taxi stands.
(6) At Council's discretion, antennas may be permitted in compliance with Federal regulations.
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4.3.7 Commercial General Zone
Commercial General is the largest commercial zone in Gander. The largest blocks of developed CG land front
onto Airport Boulevard, Armstrong Boulevard and the north side of the east end of Memorial Drive. Smaller CG
sites are located along Elizabeth Drive, Magee Road and Mccurdy Drive. Less developed areas in the zone
include Baird Avenue and a proposed development area between Baird Avenue and Memorial Drive The intent
of this zone is to facilitate general commercial and retail-oriented light industrial development that will
strengthen Gander's position as a regional retail and service centre.
The Commercial General zone allows for the development of various types of retail, service and light industrial
businesses, as well as certain cultural and public service uses.
Land Use
(1) Permitted business uses communications, general services, indoor markets, medical services, offices,
passenger assembly, personal and professional services, shops, taxi stands and veterinary services.
(2) Conservation, open space, transportation and utilities are complementary permitted uses.
(3) Other permitted uses include childcare services, cultural and civic uses and emergency services.
(4) Residential uses that may be permitted at Council's discretion include apartment buildings and apartments
over permitted groundfloor uses.
(5) Other uses that may be permitted at Council's discretion include amusement, autobody shops, cannabis
retail outlets, catering, clubs and lodges, collective and commercial accommodations, community gardens,
convenience stores, crematoriums, crop agriculture, drinking establishments, educational uses, funeral
homes, garden centres, general assembly uses, general and light industry, homeless shelters, kennels, lumber
yards, outdoor assembly, outdoor markets, recreational open space, recycling depots, service stations,
shopping centres, take-out food services and vehicle sales and services.
(6) At Council's discretion, antennas may be permitted in compliance with Federal regulations.
4.3.8 Commercial Shopping Centre Zone
The intent of the Commercial Shopping Centre zone is to accommodate larger retail outlets and anchor stores
that not only enhance Gander's position as a regional economic centre but also serve to attract development of
smaller retail and service businesses. Developed commercial lands in the CSC zone include the Dominion
Store/Gander Mall area between Cooper Boulevard and Bennett Drive and the Walmart/Kent Buildings Supplies
Area on the north side of Roe Avenue. A vacant site immediately north of the Wal mart and Kent properties is
also zoned CSC to accommodate future large retail developments. There is also vacant land fronting onto Roe
Avenue in front of Wal mart and Kent.
Land Use
(1) Permitted business uses in the CSC zone include communications, general services, medical services, offices,
personal and professional services, shops, shopping centres and veterinary services.
(2) Conservation open space, transportation and utilities are complementary permitted uses.
(3) Other permitted uses include childcare services and general assembly uses.
(4) Uses that may be permitted at Council's discretion include amusement uses, cannabis retail outlets, catering,
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convenience stores, crop agriculture, drinking establishments, garden centres, homeless shelters, indoor
markets, light industry, lumber yards, outdoor markets, recreational open space, service stations, take-out
food services, taxi stands and vehicle sales and services.
(5) Council's discretion, antennas may be permitted in compliance with Federal regulations.
4.3.9 Commercial Highway Zone
The Commercial Highway zone applies to land abutting the Trans Canada Highway. Commercial establishments
in this zone are primarily oriented to serving the travelling public, although are heavily used by local residents as
well. Main uses in this zone will be those that provide travel related services such as service stations, food outlets,
hotels and motels.
Land Use
(1) Permitted business uses in the Commercial Highway zone include commercial accommodations and
passenger assembly. Offices are permitted as accessory uses to main uses.
(2) Conservation, open space, transportation and utilities are complementary permitted uses.
(3) Uses that may be permitted at Council's discretion include catering, communications, crop agriculture,
convenience stores, drinking establishments, homeless shelters, indoor markets, recreational open space,
service stations, shops, take-out food services and taxi stands.
(4) At Council's discretion, antennas may be permitted in compliance with Federal regulations.
4.3.10 Commercial Local Zone
The Commercial Local zone applies to relatively small commercial developments dispersed throughout Gander,
which were traditionally oriented to serving residents from nearby residential areas. Examples include
convenience stores and strip malls with small retail and service outlets. In recent years many of these
developments have experienced economic decline due to competition from larger retail stores and changing
consumer preferences. It is Council's intent to allow more diverse types of development in these areas to
encourage their economic renewal.
Land Use
(1)
Permitted business uses in the Commercial Local zone include convenience stores, general services, medical
services, offices, personal and professional services and shops.
(2)
Conservation, open space, transportation and utilities are complementary permitted uses.
(3)
Other permitted uses include childcare services and community gardens.
(4)
Residential uses that may be permitted at Council's discretion include apartment buildings, apartments over
groundfloor permitted uses, residential care homes, and retirement homes.
(5)
Other uses that may be permitted at Council's discretion include catering, homeless shelters, indoor
markets, outdoor markets, service stations and take-out food services.
(6)
At Council's discretion, antennas may be permitted in compliance with Federal regulations.
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4.4
Industrial
The Industrial designation includes existing industrial areas and designated future development areas. These
include established areas of general and light industrial activity in the vicinity of Mccurdy Drive and Baird
Avenue, as well a new industrial development area west of the Town in the Ogilvie Street area.
4.4.1 General Intent
In keeping with Council's goal of increased economic activity, areas are designated Industrial to facilitate
business development and ensure a diversified economic base. Industrial areas in this designation allow for a
range of general industrial and light industrial-commercial uses.
4.4.2 Compatibility with Neighbouring Uses
New development will be permitted to the extent that it is a suitable fit with surrounding existing development
and will not unreasonably affect nearby residential areas with respect to noise, dust, glare, vibration, smell, traffic
and related factors.
Council may impose conditions to require a commercial or industrial use to maintain an attractive appearance
and minimize adverse impacts on existing uses, including proper site layout, buffering, screening and control or
restriction of potentially noxious or hazardous activities. Required screening may include fencing, berms and/or
appropriate plantings of trees and shrubs.
4.4.3 Off-Street Parking and Loading
Adequate off-street parking and loading facilities shall be provided to Council's satisfaction.
4.4.4 Area Plan
Council will require an Area Plan to be approved before permitting development of new streets in the Industrial
designation. An Area Plan will be a professionally prepared document with text and accompanying maps. It will
be reviewed by Council to determine conformity with the Municipal Plan and Development Regulations. Prior to
approving an Area Plan, Council at its discretion may give public notice, make the plan available for public review
and consider all objections and representations received.
4.4.5 Land Use Zones
The Development Regulations shall establish two land use zones within the Industrial designation (Table 4-5).
Table 4-5: Industrial Designation - Land Use Zones
Zone
I intent
I Application
Commercial-Light Industrial (CLI)
Provide for future mixed
No land currently zoned CLI.
commercial-light industrial
development.
Industrial General (IG)
Recognize existing general
Some existing areas as well
industrial areas and provide lands
as new industrial land
for general industrial development.
abutting the Trans Canada
Highway west of the Town.
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4.4.6 Commercial-Light Industrial Zone
No areas are currently zoned Commercial-Light Industrial, however the zone table is necessary in the likelihood
of the need for future development that will need to be relatively free of potential conflicting retail types of
development. The Commercial-Light Industrial zone will allow for the development of light industrial
development and associated commercial uses.
Land Use
(1) Permitted main uses include emergency services, garden centres, general services and light industry.
(2) Offices and shops will be permitted if they are accessory to a main use.
(3) Conservation, open space, transportation and utilities are complementary permitted uses.
(4) Uses that may be permitted at Council's discretion include autobody shops, crematoriums, crop agriculture,
emergency services, funeral homes, general garages, general industry, general services, kennels, lumber
yards, recreational open space, recycling depots, recycling facilities, service stations, taxi stands, vehicle sales
and services, and waste transfer stations.
(5) At Council's discretion, antennas may be permitted in compliance with Federal regulations.
4.4.7 Industrial General Zone
The Industrial General zone applies to existing industrial areas on Mccurdy Drive and Baird Avenue and a
proposed new industrial site in the vicinity of the fire training depot west of the Town.
The Industrial General zone is established to accommodate general and light industrial uses and may include
uses that are potentially hazardous in nature. Types of uses typically found in the IG zone include general
industrial uses such as fuel storage, manufacturing and processing, fabrication and construction yards, trucking
and heavy equipment depots, bulk storage, warehouses, industrial storage, concrete plants and salvage yards.
The designation may also accommodate light industrial and compatible commercial uses such as plumbing
shops, fabrication and repair shops, heavy equipment dealers, etc.
Land Use
(1) Permitted Uses in the Industrial General zone include autobody shops, general garages, general industry,
light industry and service stations.
(2) Offices and shops will be permitted if they are accessory to a main use.
(3) Conservation, open space, transportation and utilities are complementary permitted uses.
(4) Uses that may be permitted at Council's discretion include crematoriums, crop agriculture, emergency
services, general services, hazardous industry, lumber yards, recreational open space, recycling depots,
recycling facilities, salvage yards and waste transfer stations.
(5) At Council's discretion, antennas may be permitted in compliance with Federal regulations.
4.5
Tourism Recreation
The intent of the Tourism Recreation designation is to facilitate business and economic activities related to
Gander's strategic advantage as a primary gateway for visitor traffic in Central Newfoundland. Locations in this
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zone are regarded as attractive sites for commercial visitor services, accommodation and outdoor recreation
facilities.
4.5.1 Protecting Environmentally Important and Scenic Areas
Council may restrict or set conditions on development in locations that are identified as environmentally or
aesthetically sensitive. In such areas protection and conservation will take priority over development.
4.5.2 Development Plan
Before development of any proposed tourism or recreation development will be permitted, a proponent must
submit a development plan for Council's approval in accordance with requirements set out in the Development
Regulations.
4.5.3 Land Use Zones
The Development Regulations shall establish one land use zone within the Tourism Recreation designation, also
referred to as Tourism Recreation (Table 4-6).
Table 4-6: Tourism Recreation Designation - Land Use Zones
Zone
I intent
I Application
Tourism Recreation
Provide lands for a mix of
commercial tourism and
recreational uses.
4.5.4 Tourism Recreation Zone
Land Use
Existing and future mixed-use
tourism and recreation areas.
The Tourism Recreation zone will allow for the development of a strategic mix of campgrounds and/or tourist
cottage establishments combined with outdoor recreation and open space uses and appropriate accessory retail
and service uses.
(1) Permitted uses in the Tourism Recreation zone include, open space and recreational open space
(2) Conservation, transportation and utilities are complementary permitted uses.
(3) Uses that may be permitted at Council's discretion include amusement uses, campgrounds clubs and lodges,
commercial accommodations, community gardens, crop agriculture, cultural and civic uses, assembly uses,
outdoor markets and tourist cottage establishments.
(4) Catering, convenience stores, offices, shops and take-out food services may be permitted at Council's
discretion if they are accessory to a tourist cottage establishment, campground, or recreational open space
use.
(5) At Council's discretion, an accessory dwelling to a main use if it is deemed necessary for the operation
and/or security of that use.
(6) At Council's discretion, antennas may be permitted in compliance with Federal regulations.
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4.6
Public Institutional
The Public Institutional designation refers to lands used for institutional uses such as schools, churches, public
medical facilities and government buildings.
4.6.1 General Intent
Lands are designated as Public Institutional to permit the development of public and institutional uses such as
churches, schools, community facilities, medical facilities and government buildings.
4.6.2 Land Use Zones
The Development Regulations shall establish one land use zone within the Public Institutional designation, also
referred to as Public-Institutional (Table 4-7).
Table 4-7: Public Institutional Designation - Land Use Zones
Zone
I intent
I Application
Public Institutional
Land Use
Provide lands for churches, schools,
medical facilities, government
buildinqs and community facilities.
Existing and future public
and institutional areas.
(1) Permitted uses in the Public Institutional zone include childcare services, community gardens, cultural and
civic uses, education uses, medical services and medical treatment and special care.
(2)
Offices will be permitted if they are accessory to a main use.
(3) Conservation, open space, transportation and utilities are complementary permitted uses.
(4) Uses that may be permitted at Council's discretion include assembly uses, cemeteries, clubs and lodges,
collective residential facilities, correctional facilities, emergency services, church manses, homeless shelters,
places of worship, residential care facilities, and recreational open space.
(5) At Council's discretion, catering and shops may be permitted that are accessory to a main use.
(6) At Council's discretion, antennas may be permitted in compliance with Federal regulations.
4. 7
Open Space
4.7.1 General Intent
The Open Space designation refers to lands set aside for parks and open space, passive recreation, trails,
cemeteries and separation buffers between different land use classes. The Newfoundland T'Railway corridor
through Gander's built-up area is located in the Open Space designation.
4. 7 .2 Land Use Zones
The Development Regulations shall establish two land use zones within the Open Space designation, Open
Space and Open Space Recreation (Table 4-8).
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Table 4-8: Open Space Designation - Land Use Zones
Zone
I intent
Open Space
Provide lands for parks, open space,
passive recreation, trails,
cemeteries, outdoor gatherings and
community events and buffers
between potentially conflicting land
uses.
Open Space Recreation
Provide lands for outdoor and
indoor sports and recreation
facilities and community events and
activities.
4. 7 .3 Open Space Zone
This zone is also referred to as Open Space.
Land Use
I Application
Existing and future open
space areas.
Existing and future
recreational areas e.g., golf
course, ski club, T'Railway,
existing sports fields and
future recreational centre in
the Magee Road/Cooper
Boulevard area.
(1) Permitted uses in the Open Space zone include community gardens, conservation and open space.
(2) Uses that may be permitted at Council's discretion include cemeteries, docks, marinas, outdoor assembly,
recreational open space, transportation and utilities.
(3) At Council's discretion, catering and take-out food services may be permitted that are accessory to a main
use such as a marina or assembly use.
(4) At Council's discretion, outdoor markets may be permitted on a temporary basis, for example, as part of a
community event.
(5) At Council's discretion, antennas may be permitted in compliance with Federal regulations.
Cemetery
An application to develop or expand a cemetery must be accompanied by a site design plan for Council's
consideration.
4. 7 .4 Open Space Recreation Zone
Land Use
(1) Permitted uses in the Open Space Recreation zone include childcare services, community gardens,
conservation, open space and recreational open space.
(2) Transportation and utilities are complementary permitted uses.
(3) Uses that may be permitted at Council's discretion include assembly uses and outdoor markets.
(4) At Council's discretion, catering and take-out food services may be permitted that are accessory to a main
use such as an assembly use.
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(5) At Council's discretion, antennas may be permitted in compliance with Federal regulations.
4.8
Utility
Gander's utilities include the municipal water supply system including intake, storage tank and treatment plant,
sewage treatment plants, electrical substations and major transmission lines, communications towers and waste
landfill site.
4.8.1 General Intent
Lands designated Utility are reserved exclusively for public utility uses.
4.8.2 Land Use Zones
The Development Regulations shall establish one land use zone within the Utility designation, also referred to as
Utility (4-9).
Table 4-9: Utility Designation - Land Use Zones
Zone
I intent
I Application
Utility
4~8.3 Utility Zone
Provide lands exclusively for major
utilities that cannot be encroached
upon by conflictinq land uses.
Current and future public
utility uses.
At Council's discretion general and light industrial uses may be permitted that are accessory to a main utility use
This zone is also referred to as Utility. Existing and future land uses within the Utility zone includes the municipal
water storage tank and treatment plant, future sewage treatment plant, electrical substations, waste landfill site
and major communication towers.
Land Use
(1) Permitted uses in the Utility zone include conservation and transportation.
(2) Uses that may be permitted at Council's discretion include electrical utilities, recycling facilities, solid waste
facilities, waste transfer facilities, wastewater utilities and water supply utilities.
(3) At Council's discretion, antennas may be permitted in compliance with Federal regulations.
4.9
Highway Corridor
4.9.1 General Intent
The Highway Corridor designation refers to the two arterial highway corridors that pass through the Gander
Planning Area - the Trans Canada Highway (Route 1) and the Gander Bay Road (Route 330) This designation
recognizes the status of these roads as protected highways under the Provincial Protected Roads Zoning
Regulations.
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4.9.2 Highway Corridor Zone
The Development Regulations shall establish one land use zone within the Highway Corridor designation - also
referred to as Highway Corridor.
Land Use
(1) Transportation is a permitted use in the Highway Corridor zone.
(2) Open space and conservation are complementary uses that will be permitted.
4.10 Rural
4.10.1 General Intent
Areas are designated Rural to recognize their importance for natural resource utilization, agriculture
development and protection, outdoor recreation, habitat conservation and certain industrial activities that may
not be suitable in or near Gander's built-up areas.
Urban encroachment into rural areas will be minimized in order to sustain resource-based activities and reduce
the loss, fragmentation and degradation of forestlands, potential agricultural lands, existing and potential
aggregate resource lands, wildlife and fish habitat and existing and proposed recreational cottage areas.
4.10.2 Land Use Zones
The Development Regulations shall establish two land use zones within the Rural designation (Table 4-10).
Table 4-10: Rural Designation - Land Use Zones
Zone
I intent
I Application
Rural
Recognize lands presently used or
Existing rural lands lying
with potential for agriculture,
outside Gander's built-up
forestry and other natural resource
areas.
developments.
Residential Seasonal
Recognize existing and
Existing and future
accommodate future recreational
recreational cottage areas.
cottage areas.
4.10.3 Rural Zone
The Rural zone applies to significant tracts of land located in the eastern, western and northern extremities of the
Gander Planning Area.
Land Use
(1) Permitted uses in the Rural zone include community gardens, conservation, crop agriculture, forestry, mineral
and petroleum exploration, open space, transportation and utilities.
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(2) Uses that may be permitted at Council's discretion include asphalt plants, campgrounds, livestock
agriculture, mineral working, mining, petroleum extraction, recreational open space, salvage yards and waste
transfer stations.
(3) Shops and outdoor markets may be permitted if they are clearly accessory to a permitted farm, campground,
or recreational open space use.
(4) At its discretion, Council may permit a dwelling that is accessory to a permitted main use such as a farm
provided that the dwelling is necessary to the feasible operation of that main use.
(5) A general, light, or hazardous industrial use may be permitted at Council's discretion provided that the use is
accessory to a permitted main use (e.g., agriculture, forestry, mineral working, mining, petroleum extraction)
or is deemed to be unsuitable for built-up areas.
(6) At Council's discretion, antennas may be permitted in compliance with Federal regulations.
Environmentally Sensitive and Scenic Areas
Council may restrict or set conditions on land uses and resource extraction activities in locations where it deems
that the use may adversely affect steep slopes, geologically unstable areas, wetlands, watercourses and other
sensitive areas. In these areas, protection and conservation will take priority over development.
Forestry
Forest harvesting and management activities on Crown land will be subject to the requirements and supervision
of the Forestry Branch of the Department of Fisheries and Land Resources.
(1) Logging activities shall respect the Town's objectives for environmental protection, municipal watershed
protection, scenic preservation and recreation areas.
Mineral Working
Mineral working operations will be subject to terms and conditions to minimize impacts on water resources and
other sensitive environmental resources.
4.10.4 Residential Seasonal Zone
The Residential Seasonal zone takes in areas around Joe Batts Pond, Miller's Waters, Smith's Waters, Jonathon's
Pond, Boot Pond, Home Pond, Soulis Pond and Deadman's Pond. Seasonal residential properties do not receive
any municipal services.
Land Use
(1) Permitted housing the Residential Seasonal zone include recreational dwellings.
(2) Conservation, open space and utilities are complementary permitted uses.
(3) At Council's discretion, antennas may be permitted in compliance with Federal regulations.
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4.11
Future Development Area
4.11.1.
General Intent
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(1) Land is designated Future Development Area so as to reserve it for future urban development and prevent it
from becoming developed in an alternative way that would preclude urban development.
(2) No buildings, structures, or other forms of permanent development will be permitted on lands designated as
Future Development Area.
4.11.2 Land Use Zone
The Development Regulations shall establish one land use zone within the Future Land Use designation - also
referred to as Future Land Use.
4.11.3 Land Uses
(1) Permitted uses within this designation include conservation and open space.
(2) Uses that Council may permit at its discretion include forestry, mineral exploration, and certain recreational
open space uses. No permanent buildings or structures accessory to these uses will be permitted.
(3) At Council's discretion, antennas may be permitted in compliance with Federal regulations.
4.12
Airport
4.12.1 General Intent
The Airport designation refers to lands under the control of the Gander International Airport Authority. These
lands are designated for the development and operation of the Airport.
4.12.2 Airport Zone
The Development Regulations shall establish one land use zone within the Airport designation - also referred to
as Airport. The zone recognizes existing land uses on these lands and provides for future airport-related
development.
Land Use
(1) All land uses and development in the Airport zone are managed under the authority of Gander International
Airport.
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5.0
IMPLEMENTATION
The Gander Municipal Plan will be implemented over the next 10 years through decisions of Council. Of
particular importance to Council are the following:
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Effective administration of the Municipal Plan
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Public participation
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Development Regulations
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The basis of development control and
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The procedure for considering amendments to the Municipal Plan.
5.1
Administration of the Plan
The Gander Municipal Plan is comprised of goals and objectives (Section 2 of this document), community-wide
land use policies (Section 3), designation-specific land use policies (Section 4) and a program of implementation
(Section 5). The Background Report (Separate document) provides information but does not form part of the
legally binding Gander Municipal Plan. All development applications will be evaluated as to their conformity to
the policies in the Municipal Plan.
5.1.1 Map Interpretation
(1) For the purpose of administering the Municipal Plan, Future Land Use Maps 1 and 2 shall be read only in
conjunction with the goals, objectives and land use policies of the Plan.
(2) The boundaries of the land use designations shown on the Future Land Use Maps are general only and,
except where they coincide with roads, shorelines, or other prominent physical features, are not intended to
define exact limits. No amendment to the Gander Municipal Plan shall be required to allow minor
adjustments of the land use boundaries. Other than such minor boundary adjustments, no development
shall be permitted that does not conform to the Plan.
5.1.2 Development Applications
(1) A person wishing to develop land for any purpose within the Gander Municipal Planning Area must apply to
Council for permission through the established procedure. Council shall require that all development
applications conform fully to the Gander Municipal Plan before proceeding. Council may refuse or approve
the application and may set conditions on approval. The decision of Council may be appealed to the
appropriate appeal board.
(2) Once conformity to the Municipal Plan has been established, Council shall ensure that each development
proposal is given an evaluation.
(3) If Council suspects that a Provincial or Federal policy or statute may come into effect, it will refer the
development proposal to the relevant government department or agency for approval or comments.
(4) Council's final decision on an application will be based on the desire to guide the development of Gander in
the best long-term interest of residents and landowners.
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5.1.3 Subdivision Proposals and Agreements
(1) Evaluations of proposed subdivisions of land for development will include the following:
(a) An investigation of the physical conditions and features of the site, opportunities for development and
constraints on development.
(b) A demonstration of how the proposed subdivision will connect to existing roads, how it will affect
existing developments and whether it will provide future access to undeveloped lands in the area.
(c) A demonstration that the proposed subdivision will be compatible with surrounding land uses, both
existing and future.
(d) An examination of proposed municipal services and the long-term public costs of providing and
maintaining these services.
(e) Consideration of how stormwater drainage will be managed to minimize increased run-off onto adjacent
lands.
(f) Consideration of how the development may affect important and sensitive environmental resources.
(2) Before major land developments are approved in the Gander Municipal Planning Area, Council may require
the developer to enter into a development agreement with the Town. Such an agreement shall establish the
conditions under which development will proceed and shall be binding on both parties. Any conditions
governing the development will be enforced by attaching them to the development permit.
5.1.4 Non-Conforming Uses
(1) A building, structure, or other development that does not conform with the intent and permitted land uses
of this Municipal Plan, but which legally existed before the registration date of the Plan, will be permitted to
continue as a "non-conforming use" subject to the provisions of Section 108 of the Act.
(2) Notwithstanding subsection (1), if a non-conforming use is discontinued for a consecutive period of twelve
months, it shall not be recommenced and any further use of the land or building shall conform to the intent
of this Plan and its Development Regulations.
(3) A non-conforming use under this Municipal Plan:
(a) shall not be internally or externally varied, extended or expanded unless otherwise approved by Council,
(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 percent or
more of the value of that building, structure or development has been destroyed,
(d) may have the existing use for that building, structure or development varied by Council to a use that is,
in Council's opinion more compatible with this Municipal Plan and its Development Regulations
(e) may have the existing building extended where, in Council's opinion, that extension is not more than 50
percent of the existing building
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(f) where the non-conformity is with respect to the standards included in the 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 this Municipal Plan and its Development Regulations, be repaired or rebuilt where 50 percent or
more of the value of that building or structure is destroyed.
5.2
Public Participation
The Municipal Plan is an expression of the goals and aspirations of the citizens of Gander, therefore, periodic
reviews of the Plan provide an opportunity for public participation and input and can be an invaluable tool for
the successful implementation of planning.
Council will take advantage of opportunities to involve the public in decision-making processes with respect to
future planning and development of the community.
5.3
Development Regulations
Pursuant to Section 35 of the Urban and Rural Planning Act, 2000, Council has adopted the Gander Land Use
Zoning and Subdivision Regulations (referred to as the Development Regulations) in order to implement the
goals, objectives and land use policies of the Municipal Plan. The Development Regulations control the
subdivision and development of all land within the Gander Planning Area.
5.3.1 Council Responsibility
In accordance with Section 35 of the Urban and Rural Planning Act, 2000, the Development Regulations have
been established to ensure that land is controlled and used only in accordance with the Gander Municipal Plan.
5.3.2 Content
The Development Regulations:
(1) divide the Planning Area into land use zones
(2) indicate permitted and discretionary land uses in each land use zone,
(3) set out municipal-wide and zone-specific requirements and standards for the subdivision and development
of land,
(4) set out the administrative procedures for dealing with development permit applications and the issuing of
development and building permits,
(5) set out the regulations respecting the non-conforming development and use of land,
(6) set the minimum notice periods for Council decisions respecting discretionary land uses, non-conforming
land uses and variances,
(7) set out the regulations and procedures respecting appeals of Council decisions and
(8) set out the regulations respecting the enforcement of permit requirements.
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5.4
Development Control
This section discusses Council's authority and obligations regarding development control.
5.4.1 Municipal Plan is Binding
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Gander Municipal Plan is a legal document that is binding upon all persons and organizations including Council.
5.4.2 Council Responsibility
Council shall exercise appropriate control over development in the Gander Planning Area in accordance with the
Municipal Plan and the Development Regulations.
5.4.3 Subdivision Development Applications
(1) All persons wishing to subdivide or develop land for any purpose within the Planning Area shall apply to
Council for permission on the prescribed application form and shall submit a detailed drawing of the
proposal indicating the location and dimensions of the land and the development.
(2) Council will examine the application on the basis of the Development Regulations. Council may approve the
application, approve it with conditions, or refuse it.
5.4.4 Right to Appeal
An applicant who receives a refusal decision from Council on a development application may appeal that
decision to the Appeal Board in accordance with the Gander Development Regulations. Any other persons who
feel they are aggrieved by a Council decision on a development application may also appeal that decision to the
Appeal Board.
5.4.5 Provincial and Federal Referrals
If Council deems a proposed development may be affected by policies or regulations of a Provincial or Federal
department, the application will be referred to the concerned department for comment before a permit is issued.
5.5
Amending the Municipal Plan and Development Regulations
This Municipal Plan was prepared on the basis of existing and expected future conditions. It is Council's intention
not to amend the Plan for a five-year period after its adoption, after which another Plan Review will be
undertaken. Nevertheless, if circumstances change in unforeseen ways during the planning period, Council may
consider possible amendments to the Plan.
5.5.1 Municipal Plan Amendment
If Council decides to adopt an amendment to the Municipal Plan, in accordance with Section 25 of the Urban and
Rural Planning Act, 2000, the amendment procedure will be the same as for the adoption of the Municipal Plan
as a whole. This procedure is outlined in Sections 14 to 24 of the Act.
5.5.2 Stand Alone Amendment to Development Regulations
(1) If Council decides to adopt an amendment to the Development Regulations that does not also require a
change to the Municipal Plan, the amendment procedure will be in accordance with Section 35 (5) of the Act.
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(2) Council shall give notice of the proposed change in a newspaper circulated in the area and shall receive
representations with respect to those changes before forwarding the adopted amendment to the
Department of Municipal and Intergovernmental Affairs and for registration under Section 24 of the Act.
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