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MUNICIPAL PLAN 2017-2027
Town of Gillams
Contact Information:
Neil Dawe, President
100 LeMarchant Rd.
St. John's, NL AlC 2H2
T: 709.738.2500
F: 709.738.2499
www. tractconsu !ting.com
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URBAN AND RURAL PLANNING ACT, 2000
RESOLUTION TO APPROVE
TOWN OF GILLAMS MUNICIPAL PLAN, 2017-2027
Under the authority of section 16, section 17 and section 18 of the Urban and Rural Planning Act 2000,
the Gillams Town Council:
a)
b)
c)
adopted the Town of Gil lams Municipal Plan on the 3rd day of July, 2019.
gave notice of the adoption of the Town of Gil lams Municipal Plan by advertisement
inserted on the 27th day of November, 2019 and the 4th day of December, 2019, in the
Western Star newspaper.
set the 18th day of December, 2019, at 2 pm at the Gil lams Fire Hall for the holding of a
public hearing to consider objections and submissions.
Now under the authority of Section 23 of the Urban and Rural Planning Act 2000, the Town Council of the
Town of Gillams approves the Town of Gillams Municipal Plan as adopted.
SIGNED AND SEALED this Jq
day u{j.l\(J:Jl1J-j , 2020.
Municipal Plan/Amendment
REGISTERED
Mayor:
Clerk:
(Council Seal)
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URBAN AND RURAL PLANNING ACT
RESOLUTION TO ADOPT
TOWN OF GILLAMS MUNICIPAL PLAN, 2017-2027
Under the authority of Section 16 of the Urban and Rural Planning Act 2000, the Town Council of
Gillams adopts the Town of Gillams Municipal Plan, 2017-27.
Adopted by the Town Council of Gillams on the 3rd day of July, 2019.
Signed and sealed this}C, day tf
aJl,{JJ)Uf , 2020.
Mayor:
Clerk:
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Shelley Pe
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(Council Seal)
CANADIAN INSTITUTE OF PLANNERS CERTIFICATION
I certify that the attached Municipal Plan have been prepared in accordance with the
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requirements of the Urban and Rural Planning Act 2000.
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TABLE OF CONTENTS
1 .1
FORWARD ................................................................................................................................ 2
1 .2
PLAN CONTENTS .................................................................................................................... 2
1.3
Plan Preparation and Consultation ........................................................................................... 3
1.4
Bringing Into Effect .................................................................................................................... 4
1.5
Plan Administration ................................................................................................................... 4
1.6
Planning Area Boundary ............................................................................................................ 5
2.0
PLANNING CONTEXT ............................................................................................... 6
2.1
General Overview of Background Study ................................................................................... 6
2.2
Physical Structure of the Municipality ...................................................................................... 8
Transportation Infrastructure ................................................................................................... 8
Municipal Infrastructure and Servicing ..................................................................................... 9
Residential Uses ...................................................................................................................... 10
Seniors' Housing ...................................................................................................................... 11
Retirement Village ................................................................................................................... 11
Commercial Uses ..................................................................................................................... 11
Resource Based Uses ............................................................................................................... 11
Public Uses ............................................................................................................................... 12
Recreation and Open Space .................................................................................................... 12
2.3
Municipal Finances .................................................................................................................. 13
2.4
A Strategy for Growth and Change for the Municipal Plan ..................................................... 13
3.0 VISION, GOALS, AND OBJECTIVES ............................................................................ 14
3.1
Community Vision ................................................................................................................... 14
3.2
Community Goals .................................................................................................................... 15
3.3 Community Objectives .............................................................................................................. 16
4.0 LAND USE POLICIES .................................................................................................. 18
4.1 General Land Use Policies ........................................................................................................... 18
4.1.1 Growth Management .................................................................................................. 18
4.1.2 Non-Conforming Uses .................................................................................................. 19
4.1.3 General Environmental Policies .................................................................................... 19
4.1.4 Subdivision of Land Policies ......................................................................................... 20
4.1.5 Other General Land Use Policies .................................................................................. 22
4.2
Specific Land Use Policies ........................................................................................................ 24
4.2.1 Residential Land Use Policies ....................................................................................... 25
4.2.2 Mixed Development Land Use Policies .......................................................................... 27
4.2.3 Comprehensive Development Area (CDA) Land Use Policies ........................................ 30
4.2.4 Rural Land Use Policies ................................................................................................... 31
4.2.5 Conservation/Open Space Land Use Policies ............................................................... 34
4.2.6 Transportation Policies ................................................................................................ 35
5.0 IMPLEMENTATION ..................................................................................................... 37
5.1
Administration of the Plan ...................................................................................................... 37
5.2
Capital Works Plan .................................................................................................................. 38
5.3
Land Use Zoning, Subdivision and Advertisement Regulations .............................................. 40
5.4
The Adoption of Development Schemes ................................................................................. 41
5.5
Procedures for Amendments .................................................................................................. 41
APPENDIX A: BACKGROUND REPORT
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Town of Gillams Municipal Plan 2017-27
1.0 INTRODUCTION
1.1
FORWARD
The Town of Gillams Municipal Plan 2017 establishes guidelines for the sustainable management of
development on lands contained within the Gillams Planning Area Boundary (PAB) by setting out a 10
(ten) year land use strategy. This Plan provides a policy framework for the land use zoning and
subdivision regulations, to be administered by Council through development and subdivision permits.
In guiding the physical improvement and sustainable growth of the community, the Plan indicates the
location and timing of residential development and the general layout and scheduling of capital works to
support development such as: improving road infrastructure especially through paving; the installation
and upgrade of water and sewer systems, and providing recreational opportunities.
It also identifies plans to address the environmental, social, cultural, economic, and governance needs of
the community. As required under the Urban and Rural Planning Act, 2000, hereby referred to as "the
Act," all relevant planning issues have been reviewed in the preparation of this Plan and are presented
in Appendix A, the Background Report to the Town of Gil/ams Municipal Plan.
The Plan additionally serves as the basis for preparation of the companion regulatory planning
document, the Development Regulations. The Regulations address land use zones, development
standards and terms and conditions, advertisement and subdivision requirements in support of the
Plan's policies. A Land Use Zoning Map accompanies the Regulations. Once approved and registered,
Town Council administers the Municipal Plan and the Development Regulations, in its review and
approval of development permits and subdivision applications, and other land development proposal
inquiries.
1.2
PLAN CONTENTS
The Town of Gillams Municipal Plan, 2017, consisting of this document and the associated Future Land
Use Map, constitutes a legal document once approved in accordance with the Act. It proposes the
allocation of land for various land uses, and includes Council's vision (goals, objectives and policies); the
Town of Gillams Municipal Plan 2017-2027
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plan for the sustainable development of the community; and the timing and costs of recommended
capital works over the next decade.
The Town hosted the first public consultation at the Town Hall at the outset of the planning process as
per the requirements of Section 14 of the Urban and Rural Planning Act, 2000. A second meeting was
held later by the Town to provide an opportunity for residents to comment on the draft plan. A
questionnaire/survey was also conducted to solicit comments and ideas from the community. The
consultants conducted a site visit which involved meetings with staff and the Council, as well as visiting
with business owners in the town.
Appendix A, the Town of Gil/ams Municipal Plan Background Report, was prepared to provide an
accurate and up-to-date examination of current conditions and an analysis of key development trends.
The report also provides the basis for some of the rationale used for policies proposed in the Municipal
Plan 2017. It does not form part of the legal document.
1.3
PLAN PREPARATION AND CONSULTATION
This Plan was prepared in accordance with the requirements of the Urban and Rural Planning Act, 2000.
The Plan documents are based on a review of current land uses, available mapping and other studies of
the community and on Council's perception of the land use problems facing the community,
opportunities for improvements to its physical environment, and the direction of future growth.
Community and stakeholder consultation has also been sought in the planning process.
Early in 2013, Town Council sent its resolution to hire Tract Consulting prepare a Municipal Plan and
Development Regulations to the Department of Municipal Affairs and Environment. This letter also
contained the request initiating an internal provincial consultation process to solicit feedback from
various departments and agencies that may have an interest in the municipal planning process.
In May of 2013, a meeting was held with Mayor Joy Burt of the Town of Gillams and Shelley Penney,
Town Clerk, to discuss challenges and opportunities, council priorities and rationale for preparing a
Municipal Plan and Development Regulations for the community. As part of its background research,
Town of Gillams Municipal Plan 2017-27
Tract Consulting Inc. personnel conducted a site visit with the Town Clerk at which time she shared her
invaluable insight.
To further understand of the community and to ensure that all community members have an equal
opportunity to participate in the planning process, Tract Consulting Inc. recommended a Community
Consultation Strategy that included the design and use of a Facebook page, the preparation of a survey
questionnaire that was posted to the Town's website and distributed to those residents who attended a
Public Open House on October 8, 2013. These methods allowed for widespread dissemination of
information and promotion of the municipal planning process and allowed for various means of
communication between residents and the planning team.
1.4
BRINGING INTO EFFECT
The Act sets out the process for bringing a Municipal Plan and Development Regulations into effect.
When Council is satisfied with the draft Municipal Plan and Development Regulations, Council adopts
these planning tools and notifies the Minister of Municipal Affairs and Environment. A Public Hearing is
arranged as per section 16 (1) of the Act and notices are published announcing the time and place of the
hearing. The commissioner appointed to conduct the hearing reports to Council and the Minister of
Municipal Affairs and Environment on any representations made. By resolution Council approves the
Municipal Plan and Development Regulations and requests Ministerial approval. Notice of the Minister's
approval is published in the Newfoundland Gazette and the local newspaper and the Plan comes into
effect on this date.
1.5
PLAN ADMINISTRATION
Upon receiving the Minister's approval, the Town of Gillams Municipal Plan is legally binding on Council
and all other persons, corporations and organizations. Council will administer the Town of Gillams
Municipal Plan by carrying out the Plan's policies. There are several ways in which this is done:
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By preparing land use zoning an subdivision regulations prepared and approved at the same
time as the Municipal Plan;
Town of Gillams Municipal Plan 2017-2027
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By issuing development permits to people wishing to build or change the use of a building or to
subdivide in accordance with regulations; and
By undertaking the capital works and development schemes outlined in the Plan when the
financial resources are available.
In five years' time, Council will review this Plan and revise it to provide for the next 10-year period in
accordance with Section 28(1) of the Act. Amendments may be made at any time prior to the five-year
review in response to new development proposals or changed community priorities. These amendments
must follow the process outlined in Sections 14 to 24 of the Act.
1.6
PLANNING AREA BOUNDARY
The Planning Area Boundary (PAB) is illustrated on Figure 1. The northern boundary of the proposed
planning area was established so as to follow the higher elevations on at the top of the Gillams Brook
valley, to encompass and protect the steep slopes and viewsheds. The Planning Area Boundary is
governed by Town Council, which exercises control over all development, environmentally sensitive
areas, and amenities of the Municipality.
Figure 1: Gil/ams Municipal Planning Area (depicted in green)
corresponds to the Town's incorporated Municipal Boundary
Town of Gillams Municipal Plan 2017-27
2.0
PLANNING CONTEXT
This section summarizes the findings of the research and consultations carried out by the planning
consultants in preparing the Town of Gillams Municipal Plan. It proposes a strategy for growth and
change for the future that builds upon and enhances the physical structure and traditional development
patterns of the community.
2.1
GENERAL OVERVIEW OF BACKGROUND STUDY
Situated in Gillams Cove on Route 440, the North Shore Highway, and on the north shore of the Humber
Arm in the Bay of Islands, the Town of Gillams boasts astounding natural environment and coastal views.
Significant elevation changes adjacent the Gillams Brook river valley provide significant views that
enhance the town's attractiveness. These steep forested slopes may require environmental protection
to reduce the risk of potential slope failure, erosion and flooding.
Historically, the culture and economy of Gillams has been tied to the natural resources of the
surrounding area. The area was settled as a rural farming and fishing community with abundant natural
resources, and a strong herring, salmon and lobster fishery. In the 1930s, Gillams grew into a logging
community as the demand for lumber grew. While Gillams' economy was initially based in agriculture
and fishing, today it is predominantly a residential community located within a 30 minute drive from
Corner Brook.
The town's current population of 405 residents was reported in the 2011 National Housing Survey
(NHS). This is a positive outcome since 2001 when the population showed a decline of 12.7%; stabilized
in 2006 with a change of -1.0%, and in 2011 showed a modest increase of 1.2%.
However, the Town of Gillams' population like the rest of the province is aging, but aging more rapidly.
The median age in Gillams is 45.2 years, a significant change since 2001 when median age was 38 years.
This compares to a provincial median age of 44 years. In Gillams, the age group 55 to 59 years is the
largest, while provincially the largest age group is 50-54 years, which further indicates that Gillams'
population is aging more rapidly. Today, seniors (from 60 years to 85+ years) make up almost 25% of the
population.
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Of concern is the declining population of young people in the town. The proportion of youth (ages 0
years to 19 years) is 22%, and less than the proportion of seniors. In the age groups 15 to 19 years no 17
year olds were recorded in the 2011 census, and only 5 females in each of the age groups of 15, 18 and
19 years. The decline in youth may have long term ramifications for the town in terms of growth,
development and stability. The continued decline and migration of the population aged 24 and younger,
along with the aging of the working population, are significant demographic trends that will impact
Gillams in the foreseeable future. The significant number of residents nearing retirement age will need
an appropriate mix of housing types and services that will entice residents to stay in Gillams where they
can retire and age in place in their own community.
While Gillams' economy was initially resource based, today it is predominantly a residential community.
The Town does not have a significant commercial base and many residents commute outside of the
community for employment. 2011 census data reveal a labour force of 195 people over the age of 15
years; with 155 of those commuting to places of work for a duration of approximately 30 minutes. This
suggests that many residents are employed in Corner Brook and surrounding area. Furthermore, 2011
census data reveal a small range of employment categories with trades and equipment operators being
the largest; followed by sales and service; construction, and health care; business and administration;
and manufacturing; education and social and community services. While most residents derive
employment income in Corner Brook, a small number approximately 40 are employed or self-employed
in and around the Town, this includes small businesses and fishing. No home based businesses are
reported by Statistics Canada, or Town staff. The opportunity to conduct a home based business may
have an important influence on the town's economy.
Statistics Canada 2011 National Housing Survey indicates there are 186 private dwellings in Gillams with
166 of those being owner occupied on a full time basis. Of these dwellings, 160 are reported as single
detached homes while 10 are flats or duplex units. The average house price in Gillams in 2011 was
$186,302 compared to a provincial average of (approximately) $225,000.
Town staff indicate that there are 171 dwellings in the town. There are no apartment buildings and only
1 known basement apartment. Approximately 2 or 3 homes in the community are vacant and there are
two seasonal dwellings (cottages) whose owners reside permanently in Ontario.
Town of Gillams Municipal Plan 2017-27
2.2
PHYSICAL STRUCTURE OF THE MUNICIPALITY
Transportation Infrastructure
There are 3 main roads in the Town of Gillams:
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Route 440 allows east-west travel and connects the Town to the nearby communities of Meadows,
Mclvers, lrishtown-Summerside and Hughes Brook;
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Farm Road intersects Route 440 at what is essentially the centre of town and runs northwest to the
municipal boundary extending beyond it into the region; and,
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Forest Drive intersects Route 440 and then extends in an east-west direction parallel to the highway
extending into the municipality of Mclvers.
Other than Route 440, which is a provincial highway, the 11 other roads in the Town of Gillams are
owned, upgraded and maintained by the municipality.
Much of the town's municipal infrastructure such as roads, and water and sewer systems was
constructed in the 1970's and later. With a small population base, few commercial enterprises and no
land use planning regulations in place, the Town has had little recourse in terms of assigning and
recouping the cost of infrastructure upgrades to residents and business owners.
Road infrastructure and particularly maintenance is an ongoing issue. The use of Farm Road by
residents, industry and developers has increased the maintenance costs of this road, which have borne
by the municipality. There is currently no mechanism for the Town to recover some of these
maintenance costs. Consequently, the bulk of the Town's maintenance budget is spent on Farm Road
upkeep, although there is a need to address road quality and maintenance of other Town roads.
The intersection of Farm Road and Route 440 frames the town centre, which contains the Town Office,
Fire Hall, several public and recreation uses, and many residences. The proximity to uses such as the
Community Hall, Senior Citizens Centre and historic coastal area, Heritage Trail and other recreation
uses enhances the central area and creates a foundation for what can become a vibrant Town Centre.
The Town's primary residential areas are located along Route 440 and Farm Road (and its short local
roadways) and Parkvale Drive.
Town of Gillams Municipal Plan 2017-2027
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Municipal Infrastructure and Servicing
The Town of Gillams is fully serviced with water while a municipal sewage system services approximately
56 of the existing 171 dwellings in the town and no commercial uses are hooked up to the municipal
sewer system. However, in recent years, water quality has been an issue, and frequent water line breaks
have created low water pressures necessitating boil water advisories to residents. The existing 4-inch
water line is aging and not able to provide adequate pressure for firefighting measures. There is no
current primary treatment facility, and sewage is discharged untreated into the Bay. Funding in the
amount of $1.6M for phase 1 and 2 of a new sewer system that included primary treatment and a new
outfall was approved in 2009 but Council decided to not proceed with the project due to financial
concerns.
Council recognizes that the water and sewer systems will need to be upgraded in the near future. Plans
to extend water and sewer services beyond current limits will be considered within the context of this
Municipal Plan and in accordance with the Town's priority for infill residential development. Any
proposed future extensions to service residential subdivisions will be the financial responsibility of the
private developer.
Three Servicing Scenarios
The Town of Gillams experiences three different scenarios with respect to water and sewer services.
Essentially there are three building lot types, they are: fully serviced, semi-serviced and unserviced
lands.
Fully Serviced Land
Currently only 56 of 171 dwellings in Gillams have both municipal water and sewer services. There is no
primary treatment facility and sewage is discharged untreated into the Bay. No commercial land uses
are connected to the sewer system. The Town is completely serviced with water, however poor water
quality is an issue due to aging and inadequate infrastructure. Council recognizes that the water and
sewer infrastructure issues must be addressed in the near future.
Town of Glllams Municipal Plan 2017-27
Semi Serviced Land
Some existing properties are semi-serviced having municipal water, but private septic systems. These
require approval and permitting from Service NL (and other provincial agencies as required). Prescribed
lot sizes for semi serviced lands are a provincial permitting requirement, thus lot size and location of
semi serviced lands for residential development will be addressed in the Municipal Plan.
Unserviced Land
Outside of the serviced area, the remainder of the Town relies on individual domestic water wells and
septic effluent systems for sewage disposal. Lots without access to municipal sanitary sewers require
approval and permits for on-site septic treatment from Service NL. New developments and required
servicing will be addressed in the Municipal Plan.
Residential Uses
In recent years Gillams has experienced a slow but steady pattern of residential development. Twelve
houses have been constructed since 2000, equating to 1.16 housing starts per year since for single
detached dwellings. This is a slower rate of growth than reported in Integrated Community Sustainability
Plan for the other North Shore Bay of Islands municipalities, however it has been consistent for the last
14 years. Residential development has occurred on privately owned vacant lands that were either sold
or passed down from family members. A common practice is the subdivision of family lands to allow
children to build new homes on traditional homesteads.
The municipality has limited land opportunities for future expansion. Areas adjacent to Route 440 are
either privately owned or pose environmental challenges due to steep slopes and rock outcrops. Along
Farm Road toward the municipality's northern edge, the town is to its boundary where the only private
land potentially suitable for development is privately owned and the location of a former quarry site.
The area along Forest Drive to the western boundary, may hold potential for future infill development.
The Municipal Plan will identify areas for potential residential uses and propose future comprehensive
development areas.
Town of Gillams Municipal Plan 2017-2027
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Seniors' Housing
With a larger older population and one that is rapidly aging, it is critical for the Town of Gillams to
consider the housing needs of this segment of its population. As older residents age, they will require
alternate types of housing and services that will allow them to stay in their community close to family
and friends and "age-in-place." There are various scenarios that will accomplish this, such as the
provision of granny flats, semi-detached or duplex housing, town houses and garden suites, or the
inclusion of in-home suites. The opportunity to explore other creative avenues to support seniors'
housing will be addressed through this Municipal Plan.
Retirement Village
Should Council wish to encourage and pursue the development of residential housing that caters to an
aging population, it may create an opportunity for Gillams to become the ideal retirement community in
the Bay of Islands. Improvements to infrastructure and increased commercial services would be
instrumental in attracting such developments and may launch Gillams on a path to future growth.
Promoting housing that is intended to allow residents to retire or to "age in place" in proximity to their
community of family and friends, and incorporating the proximity of existing amenities and promoting
nature-based recreation with a network of walking trails and parks will help Gillams target a market
looking for the ideal retirement community.
Commercial Uses
Three commercial uses currently exist in Gillams. They include: an auto body shop, storage facility and a
real estate agent. There was one business start in the last ten-year period, which has recently closed,
and no new business ventures have been proposed. An artist's glass studio recently moved to a new
location outside of Gillams.
Resource Based Uses
Resource-based uses include an active gravel pit operation, and one whose permit has recently expired,
and a portable sawmill operation. The only wharf in town is privately owned and the family is actively
Town of Gillams Municipal Plan 2017-27
involved in the fishery. There is no government wharf. There are two commercial forestry cutting
permits, and over the last 10 years Forestry Services has issued between 100 and 160 domestic cutting
permits annually to local residents who harvest wood for personal consumption as a source of home
heating.
Public Uses
While predominantly residential the town also includes several non-residential uses that can be
categorized as public and recreation uses which are owned either by the municipality or privately owned
and available to residents of Gillams and area. Municipally owned buildings include the Town Office and
Fire Hall and Community Hall. Privately owned facilities available for public use are St. James Anglican
Church, which also houses the Heritage Museum, a seniors' centre, and firefighting training centre.
Recreation and Open Space
The Recreation Commission manages several municipal recreation facilities such as the Heritage Trail, a
playground and softball field and 4 picnic areas. These important town assets benefit local residents
with a good quality of life and need to be preserved through the Municipal Plan.
The first two loops of the Heritage Trail, a walking/hiking trail within the Town boundary have been
successfully completed and are well used and enjoyed by residents and visitors alike. Plans are in place
to extend this trail in an easterly direction adjacent Gillams Brook into the extended Planning Area
Boundary to north. To this end, the municipality has submitted an application for Crown lands to
accommodate the development of this trail extension, and once it receives title to these lands, Council
intends to initiate the third phase of the Heritage Trail.
Town of Gillams Municipal Plan 2017-2027
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2.3
MUNICIPAL FINANCES
Finally, development patterns and the viability of a community are also reflected by total taxable
assessment. Total taxable assessment has increased steadily with a total taxable assessment of
$13,333,500 in 2010; $13,825,100 in 2012; and $17,552,200 in 2014. The projected total taxable
assessment for 2015 is $17,638,400; suggesting that the Town continues to hold its own through steady
albeit slow growth and thoughtful management by Council.
2.4
A STRATEGY FOR GROWTH AND CHANGE FOR THE MUNICIPAL PLAN
Leading to more specific objectives and policies, the development strategy for the Town of Gillams
Municipal Plan 2017 is to continue with and reinforce the patterns of development that have occurred
over the last decades. The emphasis will be on strengthening the area of the central area of the town
through infill and selective backlot development rather than continued ribbon development that
promotes inefficient use of land and municipal services. Development of housing, especially for seniors;
provision of commercial and community services; the enhancement of recreation and open space
opportunities; and the protection of significant environmental features and lands will be the focus of
this plan.
In considering the future land use designation and land use zoning for lands within the Gillams Municipal
Planning Area, Council should be cognizant of the area made available for urban development by
provincial Crown Lands. Community Infilling Limits are the extents within which the province will allow
development of Crown Land to extend beyond the built-up part of town. Although this is the first
Municipal Plan for Gillams, and notwithstanding private land development, these Infilling Limits have a
significant role in the development patterns in rural communities as they control the development of
Crown Land from certain types of development.
Town of Gillams Municipal Plan 2017-27
3.0 VISION, GOALS, AND OBJECTIVES
This section outlines the Town's planning vision, goals, and objectives that will be pursued for the
period. The vision statement establishes a broad picture of the community's future - a future that
Council will endeavour to achieve through the implementation of the policies and proposals outlined in
the Municipal Plan. A goal is a desired state that reflects the long range desires of Council and is related
to an area of concern. It is concrete, realistic, action-oriented and attainable within a period of three to
five years. The realization of an objective should move the goal closer to reality. The community vision,
goals and associated objectives were determined through consultation with Council, stakeholders, and
the public.
3.1
COMMUNITY VISION
The North Shore Bay of Islands Integrated Community Sustainability Plan, 2010 (ICSP) suggested a
regional vision statement that provides a good platform from which to develop a more comprehensive
vision unique to the Town of Gillams. Consultation with Council revealed a desire to craft a new vision
statement for Gillams that integrates aspects of the ICSP vision. By integrating elements of the ICSP into
the Municipal Plan, the Town will have two complementary documents to help guide the future growth
of the Town. Council's vision is as follows:
Gil/ams has a 250 year history of sustaining its citizens in a rural setting and will continue and
enhance that role by providing a clean, safe, economically viable environment for all of its
citizens from youth to seniors; while promoting health and wellness; protecting the environment;
and respecting the past.
Gil/ams will be a vibrant, family-oriented community, providing a strong base of support for
senior citizens while encouraging an active, healthy lifestyle for all residents. The Town will
promote planned developments that respect current land uses while simultaneously promoting
economic growth and respect for the environment.
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3.2
COMMUNITY GOALS
The following five community-wide goals will guide the growth and development of Gillams from 2017-
2026. The five goals are based on the key values identified in the North Shore Bay of Islands ICSP and
will guide the decisions and actions of Council over the course of the next ten years.
Goal 1 Community Structure and Character - encourage growth in the Town of Gillams that ensures
orderly development, efficient provision of municipal services, respect for the natural
environment, and compatibility between land uses. Infill development on available lands with
access to existing services should be considered before development in unserviced areas.
Access to land adjacent to serviced areas should be promoted and provided through the
coordination of development plans.
Goal 2 Housing - Encourage the development of good quality, appropriate quantity and mix of housing
types to address the needs of local residents especially seniors.
Goal 3 Environment - Encourage a community philosophy that values and protects its natural
environment and applies the principles of environmental stewardship to the use and land and
human activity.
Goal 4 Culture, Recreation and Open Space - Support existing as well as the provision of new
recreation and open space facilities and services that are accessible to all residents of Gillams
regardless of age, ability or economic position.
Goal 5 Efficient Municipal Services - Manage municipal expenditures and revenues so as to provide
municipal services based on long-term financial stability.
Town of Gillams Municipal Plan 2017-27
3.3 COMMUNITY OBJECTIVES
The intention of the Community Objectives is to create the foundation for the policies expressed in this
Plan. Flowing from the Community Goals, the Town of Gillams Municipal Plan outlines the following
policy objectives.
Objective A
Objective B
Objective C
Objective D
Limit development in areas of the municipality that cannot be economically serviced.
Encourage new and infill development in the areas of the town with existing water and
sewer services that have capacity, or where these services can be easily and efficiently
provided.
Maintain the conventional single-family detached dwelling as the dominant housing
form while allowing other types of housing such as granny flats, semi-detached, multi-
unit dwellings, and apartment units, to accommodate the needs of families and an aging
population.
Ensure that access and rights-of-way are created to connect existing serviced areas to
Comprehensive Development Areas (CDAs) where the cost of extending services is
feasible.
Objective E
. Prevent development in areas that pose potential hazards such as steep slopes, rock
outcrops, and wetlands and flood plains.
Objective F
Encourage and facilitate the continued development and maintenance of the Heritage
Trail as a community asset and tourism attraction.
Objective G
Objective H
Encourage economic development through home based businesses/ home occupations/
home offices.
Identify and protect areas of significant scenic, environmental and resource value
through the development and adherence to environmental protection policies.
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Objective I
Objective J
Objective K
Objective L
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Preserve and protect open spaces, ponds, streams, coastal features, and
environmentally sensitive areas for conservation and recreational uses.
Determine and verify plans to upgrade and extend the municipal water and sewer
systems to accommodate existing development; improve water pressure for firefighting
purposes and encourage new development.
Ensure large scaled new development addresses traffic circulation to avoid congestion,
and hazardous intersections and find ways to improve existing traffic circulation and
safety.
Manage municipal expenditures and debt burden in a prudent manner and according to
the Town's ability to pay. Maximize return on investment.
Objective M
Ensure that new land developments take place with no additional capital cost burden to
the Town for municipal services by requiring developers to fund infrastructure
extensions and improvements to support proposed land developments.
Town of Gillams Municipal Plan 2017-27
4.0 LAND USE POLICIES
This section provides the policy framework necessary to determine planning for the Town of Gillams in
the future, by translating the Goals and Objectives outlined in Section 3: Vision, Goals and Objectives
into specific planning policies. This section, along with the accompanying Future Land Use Map, includes
all policies that viewed by Council as necessary to ensure the physical development of the Town is
carried out in an efficient and economic manner during the Planning Period (2017-2026). These policies
will be addressed through regulations set out in the Town's Land Use, Zoning, Subdivision and
Advertisement Regulations (Development Regulations).
4.1 GENERAL LAND USE POLICIES
The following policies can be categorized as general in scope and apply to all areas within the Town of
Gillams Municipal Planning Area.
4.1.1 Growth Management
Policy G-1:
Policy G-2:
It shall be a policy of Council to direct new development in accordance with the Future
Land Use Map, as amended from time to time, and in accordance with the policies of
this Plan. Generally speaking, new residential development will be located in areas of
Town that can be easily and economically serviced. New commercial development will
be concentrated along Route 440 and where it meets Farm Road in lands designated for
Mixed Development.
It shall be a policy of Council to require that site plans for infill and land development
meet the approval of Council. Developments shall be compatible with the existing
character of surrounding buildings, and in accordance with Council's objectives and
development standards for the area with respect to lot size, frontage, road width,
alignment, installation of municipal services or private systems, and other matters
concerning current or future public works.
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4.1.2 Non-Conforming Uses
Policy G-3:
In accordance with Section 108 of the Urban and Rural Planning Act, 2000, a
development or use of land is allowed to continue in a manner that does not conform
with this plan and regulations provided that the non-conforming use legally existed
before the registration under section 24 of the plan and legally existed on the day the
plan comes into effect. Where a non-conforming building or use exists, it shall not be
allowed to varied, extended or expanded, structurally modified, reconstructed or
repaired, except in conformance with Section 108 of the Act.
4.1.3 General Environmental Policies
Conservation values are inherent in this Municipal Plan. Priority is given to protecting sensitive areas
from potential negative impacts of development and climate change. This Municipal Plan pays particular
attention to protecting sensitive and scenic areas, including watercourses (rivers, streams, etc.), water
bodies (lakes, ponds, etc.), coastlines, flood risk areas, wetlands and steep slopes from the potentially
adverse impacts of development.
Policy G-4:
Policy G-5:
Policy G-6:
It shall be a policy of Council to encourage the preservation of natural features such as
mature forested areas, steep slopes, natural shorelines, wetlands, and view planes,
among other features, in order to preserve natural areas for future generations. New
development shall be required to minimize impacts on the environment.
It shall be a policy of Council that any development or land use activity will be
separated from any water body, watercourse, tributary, wetland and coastline by a
buffer, the requirements for which shall be set out in the Development Regulations.
Council shall prohibit development in areas exposed to ocean surges, flooding or other
significant natural dangers. Proposed development activity in the water, or within a
required buffer area, will be referred to the Department of Municipal Affairs and
Environment for consideration under Section 48 of the Water Resources Act.
It shall be a policy of Council that all development including buildings, driveways,
parking areas, grading of land and excavation of drainage ditches is carried out in a
Town of Gillams Municipal Plan 2017-27
Policy G-7:
manner that does not cause excessive increase of storm water runoff affecting adjacent
properties, steep or unstable slopes, nearby watercourses, or other sensitive areas.
It shall be a policy of Council that any development or land use activity shall be
separated from any lake, stream, river, shoreline, tributary or wetland by: (1) a 15 m
buffer for passive activities and (2) a 30m buffer for any development, including sanitary
sewer systems, unless approved by the Water Resources Management Division. Council
shall prohibit development in areas exposed to flooding, or other significant natural
dangers. Proposed development in the water or within the required buffer area, will be
referred to the Department of Municipal Affairs and Environment for consideration
under Section 48, the Water Resources Act.
4.1.4 Subdivision of Land Policies
The process and result of dividing a parcel of land into smaller buildable sites, streets, open space and
public areas is known as the "subdivision of land."
PolicyG-8:
It shall be a policy of Council that all proposed subdivision of land will be subject to a
comprehensive evaluation. The depth of the evaluation will depend upon the scale of
the proposed development, the environmental sensitivity of the area, and the nature of
any public concerns identified. The content of this evaluation will be detailed in the
Development Regulations and include:
(a)
An investigation of all physical features of the site and the opportunities and
constraints to development;
(b)
The layout of proposed lots and roads with respect to the topography and
natural features of the land;
(c)
The integration of the proposed subdivision development with existing
developments, roads and municipal services and the provision of future access
to undeveloped backland areas;
(d)
(e)
(f)
Potential effects on environmentally sensitive resources;
Future access to undeveloped lands in the area;
Potential compatibility (or conflict) with surrounding land uses, both existing
and future.
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Policy G-9:
Policy G-10:
Policy G-11:
Policy G-12:
[raat:Con;11lltlng Int.
(g)
The proponent's proposal for water and sewer services and appropriate
provincial permits; and
(h)
The estimated long-term costs to the Town to maintain the proposed roads and
water and sewer infrastructure.
Subdivision Agreements
It shall be a policy of Council to require an applicant to enter·into a subdivision
agreement with the Town as a condition of approval. An agreement shall be negotiated
between the developer and the Municipality for financing and development of services
provided to the site, constructed to municipal standards, and consistent with the
policies of this Plan and the Deve'lopment Regulations.
Public Input
It shall be a policy of Council to seek, at its discretion, input from neighbouring property
landowners, when reviewing applications to subdivide and develop land, especially
when four (4) or more lots are proposed.
Council Decision
It shall be a policy of Council to review each application to subdivide and develop land
on a case-by-case basis. Upon review, Council may:
(a)
(b)
(c)
(d)
Approve the development as proposed;
Approve the development with terms and conditions;
Defer a decision subject to more detailed information; or
Not approve the development if it concludes that the development is unsuitable
for the location, will be prohibitively expensive to service, or will create
environmental or other problems that cannot be sufficiently corrected or
mitigated, such as, where the development will create or aggravate adverse
storm water impacts to the detriment of the Town or adjacent properties.
Municipal Services and Costs
It shall be a policy of Council that developments requiring new streets, street
extensions, and municipal water and/or sewer services located outside the current
Town of Gillam, Municipal Plan 2017-27
serviced area(s) will be required to be constructed to standards set out in the
Development Regulations and shall be the financial responsibility of the developer.
Ownership of new streets and service infrastructure will be required to be transferred,
at no cost to the Municipality, upon satisfactory completion.
.t.5 Other GE era! l!.and Use Policies
Policy G-13:
Easements and Emergency Access
Where land is required for utility easements or emergency access, it shall be a policy of
Council to permit such land to be acquired for the appropriate agency in the course of
approving subdivJsion or other development applications.
Appropriate Siting of Development
Policy G-14:
It shall be a policy of Council that building setbacks from roads be provided in
accordance with the zoning and subdivision regulations to preserve the right-of-way
widths, as specified in the Development Regulations. Such setbacks should be sufficient
to allow appropriate landscaping and to permit the parking and movement of vehicles
clear of any road allowance.
Policy G-15:
ft shall be a policy of Council that all development must front on a publicly maintained
street, except for residential backlot development which must meet other access and
frontage requirements as set out in the development regulations.
Policy G-16
Policy G-17:
It shall be a policy of Council to permit development only on lands having soil and
drainage conditions that are suitable for the proper siting and development of the
proposed uses.
Steep Slopes
Council shall prohibit development in areas of steep slope (in excess of 25%) or where
there is a potential of slope erosion and failure.
These areas shall not be developed except for infill development proposals at Council's
discretion within the MD zone with the condition that such proposals are accompanied
and supported by a qualified geotechnical or other engineering certified
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Policy G-18:
Policy G-19:
Policy G-20:
Policy G-21:
Policy G-22:
and stamped report and recommendations, and all such proposals are approved by
Council.
Wharves, Docks and Shoreline Access
It shall be a policy of Council that, as a condition of approval, development of wharves
and docks for public, commercial or personal uses may be permitted in appropriate
locations along the shoreline of Gillams Brook and the Humber Arm provided that they
have no adverse effect on the site, are compatible with surrounding land uses, and
meet the approval and conditions of the Department of Municipal Affairs and
Environment and the federal Department of Fisheries and Oceans, or any other
regulatory agency.
It shall be policy of Council to ensure that public access to and along the shoreline of
Gillams Cove and Gillams Brook is preserved and, where possible enhanced.
Public Access to Watercourses
It shall be a policy of Council to ensure that sufficient and appropriate public access is
maintained to coastlines, ponds, lakes, rivers and streams, for recreational use,
provided that such access does not unreasonably affect the use and enjoyment of
adjacent private lands by property owners.
Trails and Linkages
It shall be a policy of Council to encourage, where feasible, the development of new
pedestrian accesses and trails as indicated on the Future Land Use Map, or where
deemed appropriate to encourage active living and improve pedestrian safety.
Archaeological Sites
It shall be a policy of Council to consult with the Provincial Archaeology Office, Historic
Resources Division, Department of Tourism, Culture and Recreation before undertaking
any municipal works or considering applications for development that are proposed to
occur on known archaeological sites within the Gillams Planning Area.
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Policy G-23:
Sustainable Energy Development
Po1icy G-24:
Policy G-25:
Policy G-26:
It shaJI be a policy .of Council to permit, at its discretion, the development of renewable
energy facilities in the residential, mixed development and rural land use zones.
Proposals for commercial and private wind energy turbines will be subject to standards
set out in the Development Regulations.
Home-based Businesses
It shall be a _policy of Council that businesses in the form of home occupations are a
discretionary use in any residential dwelling in any land use zone and a permitted use in
the Mixed Development zone; home based businesses are conditional on not creating
negative impacts because of traffic, noise, odour, lighting, or signage.
It shall be a policy of Council to allow, and sometimes require, lands to be set aside
from active development in order to protect, maintain, or improve an environmental
resource or sensitive natural feature. These lands may be used for uses such as fields,
walking trails, and passive recreational facilities, but shall not include structures such as
buildings, parking lots or other impervious land uses.
Reinstatement of land
It shall be a policy of Council to require the reinstatement of land to a clean and
sanitary condition where the use of land is discontinued or the intensity of its use is
decreased, which might require removal of buildings or erections, covering or filling
wells, septic tanks or excavations, conducting an environmental audit and potentially
remediating the site, and closing accesses, to the satisfaction of the Authority.
4.2
SPECIFIC LAND USE POLICIES
The land resources of the Gillams Planning Area shall be managed in accordance with
the proposed land uses shown on the Future Land Use Map and the land use policies of
this Municipal Plan.
Land use designations include:
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Residential
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Mixed Development
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Comprehensive Development Area
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Rural
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Conservation
The specific policies that apply to each of these land use designations are described in the sections that
follow.
4.2.1 Residential Land Use Policies
General Intent
Land is designated Residential in the northern area of the town encompassing the land areas east and
west of Farm Road and including Parkvale Drive, Second Avenue, Meadow Heights Road and Meadow
Heights Extension. Within this land use designation the principle housing type will continue to be the
single-detached dwelling, however a range of housing types, and densities that respond to the needs of
an aging resident population may be considered.
The highest priority for residential development is given to areas that can be economically connected to
existing piped services including, infill along existing roads and backland areas that are readily accessible
for servicing. Second priority is given to the development of semi-serviced lands that can be
economically connected to existing municipal water services with adequate capacity. Third priority is
given to the development of unserviced lands where the extension of municipal services is cost
prohibitive or physically impossible or where municipal services are not expected to become available.
Policy RES-1:
The Future Land Use Map shall indicate Residential (RES) land designations that shall be
further categorized on the Land Use Zoning Map as the following zone: Residential -
RES. The detailed requirements of this zone are outlined in the Schedule C of the
Development Regulations. The Residential designation is intended to accommodate
single-detached dwelling units as infill opportunities and through the approved
subdivision of land. The inclusion of specialized housing types is intended to
accommodate the needs of seniors as well as the need for affordable housing.
Town of Gillams Municipal Plan 2017-27
Policy RES-2:
It shall be the policy of Council to create a Residential zone with permitted uses to
include: Single Dwelling (with subsidiary apartment which includes granny
flat/apartment) and Double Dwelling. Other types and densities of housing may be
permitted as discretionary use in some areas as detailed in Schedule C of the
Development Regulations.
Such development may occur in these areas through infilling of vacant lands and
through the subdivision of land provided that:
(a)
Municipal water and sewer services have adequate capacity and can be
provided to the lot; or,
(b)
Individual water well and septic systems can be provided in compliance with
provincial regulations as approved and permitted by Service NL.
Policy RES-3:
It shall be a policy of Council to permit the use of a modular home as a permanent
residence that is certified as meeting construction standards set by the Canadian
Standards Association (CSA) subject to terms and conditions outlined in Schedule C of
the Development Regulations.
Policy RES-4:
It shall be a policy of Council to permit conservation, forestry, and recreational open
space uses as compatible and complementary uses within the Residential designation.
Policy RES-5:
It shall be a policy of Council to permit as a discretionary use, on an existing residential
lot, the development of a dwelling unit known as a garden suite, intended for the sole
occupancy of not more than two senior adults who are related to the owner-occupier of
the principle residence, and subject to terms and conditions outlined in Schedule C of
the Development Regulations. In such cases, Council must be satisfied that:
(a)
The lot that has standard frontage on a publicly maintained road;
(b)
Municipal water and sewer services can be provided to the development;
(c)
Adequate access is provided to the lot; and
(d)
Development will not prejudice the future use of adjacent lands.
Policy RES-6:
It shall be a policy of Council to permit as a discretionary use, home-based businesses in
Residential areas subject to the terms and conditions listed in Schedule C of the
Development Regulations.
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Policy RES-7:
It shall be a policy of Council that non-residential uses in Residential areas, such as
forestry or discretionary uses such as home-based businesses, shall not create excessive
noise, odour or pollution or a hazard to adjoining properties and, if necessary, must be
adequately separated and buffered from surrounding residential development in the
form of side yards, screening, or landscaping buffers. Adequate off-street parking space
must be provided for these uses.
Policy RES-8:
Backlot development will be permitted in the residential zone subject to conditions set
out in the Development Regulations.
Policy RES-9:
It shall be a policy of Council to permit the following uses as discretionary uses in the
Residential zone: Garden Suite, Row dwelling, Apartment Building, Commercial
residential (includes tourist home, and bed & breakfast), Home based business (Office;
Medical, Professional, and Personal Service; Home Child Care), Child Care,
Communications, Medical Treatment and Special Care Class (such as Children's Homes,
Homes for Aged, Seniors Care), Shop, Convenience Store, Place of Worship, Educational,
Agriculture (home garden), Transportation, Fisheries, and Utilities, and renewable
energy infrastructure, such as wind turbines.
Policy RES-10: It shall be a policy of Council that the permitted and discretionary uses area subject to
the terms and conditions listed in Schedule C of the Development Regulations.
Policy RES-11: Notwithstanding the foregoing policies, it shall be a policy of Council to not issue a
permit where it is of the opinion that the proposal will have an adverse or detrimental
effect on adjacent properties or the residential character of the zone.
4.2.2 Mixed Development Land Use Policies
General Intent
The Town of Gillams has no identified commercial centre. With a small resident population, and the
proximity of the community to the larger regional centre of Corner Brook, there is limited demand and
capacity for local commercial retail and personal services activities.
Town of Gillams Municipal Plan 2017-27
Lands fronting on and adjacent to the North Shore Highway, Route 440 and some lands fronting on Farm
Road contain a mix of residential, limited commercial, public and recreational uses. The intent of the
Mixed Development designation is to provide opportunities for residential development to serve the
local community; and to integrate a mix of commercial, public and recreational uses within the built-up
areas of the municipality.
Policy MD-1:
The areas designated as Mixed Development on the Future Land Use Map, shall be
further categorized on the Land Use Zoning Map as the following zone: Mixed
Development - MD. The detailed requirements of this zone are outlined in the Schedule
C of the Development Regulations.
Policy MD-2:
It shall be a policy of Council to permit residential uses in the form of single dwellings
with subsidiary apartments/granny flats, and double dwellings as the primary use within
the Mixed Use designation. Council may permit on a discretionary basis, a wider range
of higher density residential uses it deems appropriate, where such uses are determined
to be compatible with the existing rural - residential nature of the community. Examples
of such uses include: seniors' housing and retirement developments and care homes as
row housing or apartment form provided that the sites are either on municipal water
and sewer or can meet the requirements of Service NL for an un-serviced site.
Policy MD 3:
It shall be a policy of Council to permit Conservation and Recreation Open Space uses.
Policy MD 4:
It shall be a policy of Council to permit on a discretionary basis, Home based business
(Office; Medical, Professional, and Personal Service; Home Child Care); General
Assembly use division, General Assembly halls, Place of Worship, Club and Lodge,
Protection, Catering, Cultural and Civic, Seniors Centre, Museum, Indoor Assembly,
Outdoor Assembly, Medical Treatment and Special Care Class (such as Children's
Homes, Homes for Aged, Seniors Care), Bed & Breakfast, Business or Personal Services
use division (such as, Government Offices, Fire Hall and fire-fighting training centre,
Medical and Professional, Personal Service, General Service), Mercantile Use group
except Shopping Centre (such as Corner Stores and Markets), Service Station,
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Agriculture, Forestry, Mineral Working, Cemetery, Animal, Antenna, Transportation,
Fisheries, and Utilities, Garden Suite, Light industry, subject to terms and conditions as
outlined in Schedule C of the Development Regulations.
Policy MD-5:
It shall be a policy of Council to permit the use of a modular home as a permanent
residence that is certified as meeting construction standards set by the Canadian
Standards Association (CSA) subject to terms and conditions outlined in Schedule C of
the Development Regulations.
Policy MD-6:
It shall be a policy of Council to permit as a discretionary use, on an existing residential
lot, the development of a dwelling unit known as a garden suite, intended for the sole
occupancy of not more than two senior adults who are related to the owner/occupier of
the principle residence, and subject to terms and conditions outlined in Schedule C of
the Development Regulations. In such cases, Council must be satisfied that:
(a)
(b)
(c)
(d)
The lot that has standard frontage on a publicly maintained road;
Municipal water and sewer services can be provided to the development;
Adequate access is provided to the lot; and
Development will not prejudice the future use of adjacent lands.
Policy MD-7:
It shall be a policy of Council to permit home-based businesses in Mixed Development
areas subject to the terms and conditions listed in Schedule C of the Development
Regulations.
Policy MD-8:
In evaluating proposals for new development in Mixed Use areas, it shall be a policy of
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Council to pay particular attention to the compatibility of uses such that non-residential
uses shall not create excessive noise, pollution or a hazard to adjoining properties and, if
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necessary, must be adequately separated and buffered from surrounding residential
development in the form of side yards, screening, or landscaping buffers.
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Policy MD-9:
Before permitting any non-residential development, Council will be satisfied that its
requirements with respect to building setbacks, buffering between uses, off-street
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parking, outdoor storage and other site related matters can be met as outlined in
Schedule C of the Development Regulations.
Policy MD-10: It shall be a policy of Council to allow on a discretionary basis, backlot development in
Mixed Development areas where Council is satisfied that:
(a}
Municipal water and sewer services can be provided to the development;
(b}
Adequate access is provided to the lot;
(c)
(d)
Development will not prejudice the future use of adjacent lands; and
The development is compliance with the terms and conditions outlined in
Schedule C of the Development Regulations.
Policy MD-11: It shall be a policy of Council to permit as a discretionary use, renewable energy
infrastructure such as wind turbines, subject to the terms and conditions listed in
Schedule C of the Development Regulations.
Policy MD-12: Notwithstanding the foregoing policies, it shall be a policy of Council to not issue a
permit where it is of the opinion that the proposal will have an adverse or detrimental
effect on adjacent properties.
4.2.3 Comprehensive Development Area (CDA) Land Use Policies
General Intent
A Comprehensive Development Area has been set aside to ensure the availability of land for controlled
future residential growth and expansion of the town. Council has identified an area of 40 acres of vacant
land off Farm Road where it will require a development scheme to be approved before development will
be permitted to proceed. This Comprehensive Development Area is identified on the Future Land Use
Map and is subject to the terms and conditions contained in the Development Regulations.
Policy CDA-1:
The area designated as Comprehensive Development Area on the Future Land Use Map,
shall be further categorized on the Land Use Zoning Map as the following zone:
Comprehensive Development Area - CDA. The requirements of this zone are outlined
in the Schedule C of the Development Regulations.
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Policy CDA-2:
It shall be a policy of Council to permit existing non-conforming uses to continue subject
to section 108 of the Urban and Rural Planning Act.
Policy CDA-3:
It shall be a policy of Council to permit Conservation, Utilities, Maintenance and
Operation of Existing Uses in the Comprehensive Development Area.
Policy CDA-4:
It shall be a policy of Council to require that the proponent of a proposed development
prepare a Development Scheme in compliance with Section 29 of the Urban and Rural
Planning Act, 2000, before any development is permitted in a Comprehensive
Development Area.
Policy CDA-5:
It shall be a policy of Council to require that any Comprehensive Development Area be
rezoned to the appropriate land use designation before it is developed for any
subdivision or other development beyond that permitted under this section of the Plan.
Policy CDA-6:
It shall be a policy of Council that the boundaries of all Comprehensive Development
Areas be set out more precisely when a Development Scheme is to be prepared.
Policy CDA-7:
It shall be a policy of Council to preserve road access points to a Comprehensive
Development Area, as outlined on the Future land Use Map.
4.2.4 Rural Land Use Policies
General Intent
Areas are designated Rural on the Future land Use Map in recognition of their importance for natural
resource uses, conservation of habitats and environmentally sensitive areas, and passive outdoor
recreation and open space. Urban encroachment into Rural areas will be minimized in order to sustain
resource-based activities and to reduce the loss, fragmentation and degradation of the natural
environment.
Town of Gillams Municipal Plan 2017-27
Policy RUR-1:
The areas designated as Rural on the Future Land Use Map, shall be further categorized
on the Land Use Zoning Map as the following zone: Rural - RUR. The detailed
requirements of this zone are outlined in the Schedule C of the Development
Regulations.
Policy RUR-2: It shall be a policy of Council that lands intended for Rural purposes have the following
permitted uses: Cemetery, Conservation, Forestry, and Recreational Open Space
Mineral Workings, Wharves, Marinas and related uses, Antennae.
Policy RUR-3
It shall be the policy of Council to allow the following discretionary uses in the Rural
zone: Agriculture, Single Dwelling in association with permitted use, (Accessory
Building), General Industry, Mineral Exploration (development), Mineral Working, Scrap
Yard and Solid Waste, Animal, subject to conditions set out in the Development
Regulations.
Policy RUR-4: It shall be a policy of Council to encourage conservation of natural features such as
forested areas, steep slopes, natural shorelines, water bodies, watercourses, and
wetlands and flood risk areas in order to preserve natural areas for future generations.
Policy RUR-5: It shall be a policy of Council to permit accessory single dwellings to approved resource-
based uses as a discretionary use, with adequate access and provision for water and
sewer systems and provision for waste disposal, and are subject to terms and conditions
outlined in Schedule C of the Development Regulations.
Forestry
Policy RUR-6: It shall be a policy of Council that applications for commercial and domestic forest
harvesting are subject to the requirements, review and approval of the Department of
Natural Resources, and shall reflect the town's objectives for the protection of
environmentally sensitive areas, scenic preservation and passive outdoor recreation.
Mineral Workings
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Policy RUR-7:
It shall be a policy of Council that the extraction of aggregate resources be carried out so
as to protect existing land uses, environmentally sensitive and scenic areas and passive
outdoor recreation. To this end minimum separation distances and buffering
requirements shall be implemented between pits and quarries and adjacent uses such
as residential uses, public roadways, watercourses, wetlands, environmentally sensitive
and scenic areas and outdoor recreation uses as detailed in Schedule C of the
Development Regulations.
Policy RUR-8:
It shall be a policy of Council to not permit any residential or mixed development use in
mineral extraction areas until extraction is complete and preliminary site restoration is
carried out. As areas are mined and restored on a progressive basis, the mineral
extractive designation may be moved in depleted areas and those areas may then be
committed to other land uses. This process is also dependent on whether adequate
buffer zones can be maintained between subsequent land uses and the extraction
operations. An amendment to the municipal plan and development regulations is
required for an area of land to be changed from 'Rural' to 'Residential' use.
Conservation of Environmentally Sensitive and Scenic Areas
Policy RUR-9: It shall be a policy of Council to not permit land or resource activities that it feels may
adversely affect areas that are environmentally sensitive or are not conducive to
development for aesthetic or scenic reasons. This includes steep or unstable slopes,
coastal features, geologically unstable areas, visible rock outcrops, wetlands,
watercourses and ravines. In these areas, protection rather than development measures
will take priority.
Policy RUR-10: Notwithstanding the foregoing policies, it shall be a policy of Council to not issue a
permit where it is of the opinion that the proposal will have an adverse or detrimental
effect on adjacent lands.
Town of Gillams Municipal Plan 2017-27
4.2.5 Conservation/Open Space Land Use Policies
General Intent
The Gillams Planning Area has an abundance of open space, coastal and freshwater shorelines, and
walking trails. Protecting and enhancing the waterfront and beach area, as well as the estuary of Gillams
Cove and Gillams Brook will maintain these important community assets for the future. These open
spaces along with the Heritage Trail and offer recreational opportunities for residents and offer long
term tourism potential for the town.
Lands designated as Conservation/Open Space serve a variety of functions including:
(a) Preserving important feature of the natural environment and maintaining public access to
them;
(b) Acting as buffers between potentially conflicting land uses;
(c) Ensuring public access to shorelines is maintained where possible.
Policy CON-1: The areas designated as Conservation on the Future Land Use Map, shall be further
categorized on the Land Use Zoning Map as the following zone: Conservation - CON.
The detailed requirements of this zone are outlined in the Schedule C of the
Development Regulations.
Policy CON-2: It shall be a policy of Council that environmentally sensitive lands or areas important for
wildlife habitat are designated as Conservation and are to be left in a relatively natural
state for scenic purposes, to prevent development on steep slopes, the protection of
wetlands, waterways and coastal areas or the need to provide buffers between
potentially incompatible land uses.
Policy CON-3: It shall be a policy of Council that within this designation, the following uses will be
permitted: Conservation, Recreational Open Space (Trails), marina. This includes
recreation uses such as nature trails, parks and nature interpretation, picnic areas, rest
areas, facilities for interpretation signage, and uses related to recreational marine uses
such as wharves and docks.
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Policy CON-4:
It is Council policy to allow as discretionary uses, limited agriculture, may be considered
where such uses will not have a negative impact on the environment, utilities and
antennae.
4.2.6 Transportation Policies
General Intent
Route 440, the North Shore Highway, connects Gillams with the adjoining municipalities of Meadows
and Mclvers and leads to the Trans-Canada Highway and the City of Corner Brook. Other than Route
440, which is a secondary provincial highway but not a class 2 protected roadway under the Provincial
Protected Road Zoning Regulation, all roads in the town are owned, maintained and upgraded by the
municipality. Route 440 is the point of access for the two municipal collector roads in Gillams, which
includes Farm Road and Forest Drive.
The municipal road system is meant to facilitate the efficient movement of people and goods
throughout the Planning Area. The road network is shown on the Future Land Use Map and Land Use
Zoning Map.
PolicyT-1:
PolicyT-2:
PolicyT-3:
It shall be a policy of Council to designate Route 440 (the North Shore Highway) the
main road through the settled area to the extent of the municipal boundaries, as well as
Farm Road and Forest Drive as collector streets. All other publicly maintained roads in
the settled areas of the town shall be deemed local streets.
It shall be a policy of Council to adopt road design and construction standards
appropriate to road function and access in the Development Regulation and consider
the management guidelines prepared by the Provincial Department of Transportation
and Works to effectively address future development.
It shall be a policy of Council to require that new development applications include a site
plan showing how access and parking is to be arranged and that fulfillment of these
plans is a condition of approval.
Town of Gillams Municipal Plan 2017-27
PolicyT-4:
Policy T-5:
PolicyT-6:
It shall be a policy of Council to resolve identified traffic concerns associated with
existing roads within the Planning Area to improve the safety and function of each road.
It shall be a policy of Council to establish priorities for long-term road maintenance.
It shall be a policy of Council to ensure that appropriate public road reservations are
maintained to provide road connections to back-land areas with future development
potential.
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5.0 IMPLEMENTATION
The Municipal Plan will be implemented over the next ten years through decisions of Council and
government agencies that have responsibility for various aspects of development that affect the Town;
of particular importance to Council are the following:
a) Effective administration of the Plan;
b) The adoption of a five year capital works program, updated annually;
c) The adoption of Land Use Zoning, Subdivision and Advertisement Regulations;
d) The adoption of development schemes;
e) The procedure for considering amendments to the Plan; and
f)
Working in partnership with citizens, groups, and organization to achieve the collective goals of
the community.
5.1
ADMINISTRATION OF THE PLAN
For the purposes of administering the Plan, the Future Land Use map shall be read in conjunction with
the Goals, Objectives and Policies outlined in this document. All development applications shall be
carefully evaluated as to their conformity to the Plan. The full conformity of all proposals to the Plan
shall be required by Council.
The boundaries of land use designations shown on the Future Land Use Map are meant to be general,
except where they coincide with roads or other prominent physical features, where they are intended to
define the exact limits. It is intended that no amendment of this Plan shall be required to permit minor
adjustments to these boundaries. Other than such minor changes, no development shall be permitted
that does not conform to this Plan.
Once conformity to the Plan has been established, Council will ensure that all development proposals
are given a comprehensive review which shall include circulation to all affected public departments and
Town of Gillams Municipal Plan 2017-27
agencies. Council's final decisions will be based on the desire to guide the development of Gillams in the
best long-term interests of its citizens.
All persons wishing to develop land for any purpose within the Gillams Municipal Planning Area shall
apply to Council for permission through the established procedure. Council may refuse or approve
applications, with or without conditions. The appeal of all Council decisions to the appropriate Appeal
Board will be permitted in accordance with the Part VI of the Urban and Rural Planning Act, 2000.
Before major land developments within the Planning Area are approved, a development agreement may
be required which will be signed by both the developer and Council. This agreement shall establish the
conditions under which development may proceed and shall be binding to both parties. Conditions
governing development may also be enforced by being attached to the development permit.
Nothing in this Plan shall affect the continuance of land uses which are lawfully established on the date
that the Plan comes into effect.
5.2
CAPITAL WORKS PLAN
In the coming planning period, a Capital Works Plan will be adopted and implemented by Council that
will aim to upgrade existing infrastructure and construct new infrastructure where appropriate. The
Program will include a five-year program of work to be undertaken as required by the Municipalities Act.
The following tables identify priority works projects and studies that have been identified to implement
the Plan over the Planning Period. Projects will be pursued with due consideration of the financial
position of the Town, its revenue sources, borrowing capabilities and available funding opportunities.
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YEAR
CATEGORY
PROJECT
2015
2015 MSIS Applications
1.
Town
Street upgrades - various
Roads
Paving, manhole
adjustments, ditching
and storm culverts
2.
Town
Upgrades to Community
Buildings
Hall
Electrical,
windows/doors, siding &
interior finishes
Fire Hall
TOTAL
ESTIMATED
COST
$2,518,550.00
$141,825.00
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COUNCIL
PORTION
10%if
approved
10%if
approved
*Council in a position where it must apply for funding to complete capital works
improvements, thus planning for capital works projects is done on a yearly basis as
opposed to 5-year basis based upon the application process
Council's ability to undertake major public works during the Planning Period will depend largely on its
financial management program. Overall, the objective will be to minimize the increase in municipal debt
load and to economize on project costs where possible.
The following are regarded as important components of a financial management program for the
municipality:
(a) All proposed public works, which qualify for assistance from the provincial or federal
governments shall be financed on this basis. This shall include cost sharing programs with
the provincial government and grants.
{b) Funds raised by the municipality to undertake public works shall be obtained from local
revenues where possible. The principle source from which funds could be realized for this
Town of Gillams Municipal Plan 2017-27
purpose is new development. Minor public works in particular should be financed from
current accounts where possible.
(c) Mill rates and service fees shall be managed during the Planning Period to keep pace with
inflation and to ensure that an acceptable level of municipal services can be achieved.
(d) Council shall manage its debt during the Planning Period with the long range objective of
reducing its ratio of debt charges to total revenues to 28%.
(e) Additional borrowing to undertake major public works shall preferably be on the basis of
government guaranteed loans.
(f) Annual locally generated revenue shall be applied against the municipality's long term debt.
Payments shall be in keeping with the policy of the Department of Municipal Affairs and
Environment and agreement between the Town and Department.
(g) For subdivision development, Council shall pursue a break-even policy for development
which will require the developer to pay for the installation of all services to municipal
standards.
5.3
LAND USE ZONING, SUBDIVISION AND ADVERTISEMENT REGULATIONS
Once this Municipal Plan has been adopted, Council will proceed to adopt Comprehensive Land Use
Zoning, Subdivision and Advertisement Regulations (known as Development Regulations) pursuant to
Section 35 of the Urban and Rural Planning Act, 2000.
The regulations will be drawn up so as to implement the Goals, Objectives and Land Use Policies of the
Municipal Plan. The document will contain general land use and subdivision regulations designed to
control all land subdivision and development within the Gillams Municipal Planning Area.
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All land within the Planning Area will be covered by land use zones (residential, commercial, etc.) which
will provide for such detailed requirements as lots size and coverage, building setbacks and parking
regulations.
Council may refuse or approve applications, with or without conditions. Decisions of Council made
according to the provisions of this Plan and the accompanying Development Regulations may be
appealed to the appropriate Appeal Board established under Part VI of the Urban and Rural Planning
Act, 2000.
5.4
THE ADOPTION OF DEVELOPMENT SCHEMES
Another means by which this Plan can be implemented is through the adoption of Development
Schemes. They can be prepared at any time during the Planning Period in order to amplify on policies
contained in the Plan or to allow for development of particular land areas.
Development Schemes are prepared under the Urban and Rural Planning Act, 2000 and therefore are
subject to a Public Hearing and approval by the Minister, the same as a Municipal Plan.
5.5
PROCEDURES FOR AMENDMENTS
The administration and implementation of a Municipal Plan is a continuous process. During the planning
period, conditions in the town may change, and where necessary, amendments to the Municipal Plan
and associated Development Regulations may be adopted by Council.
In accordance with Section 27 of the Urban and Rural Planning Act, 2000, Council will charge a
proportion of the cost of carrying out an amendment to the person or association of persons, who
request and amendment. The proportion to be charged will be set by Council as part of its annual
budget process in setting its Schedule of Rates and Fees. The costs may include, but are not limited to,
research, and preparation of amendments, public notice and consultation, administrative processing
costs, and the costs associated with a Public Hearing.
Town of Gillams Municipal Plan 2017-27
Any such amendment will be read with and form part of this Plan. After five years from the date on
which this Plan comes into effect, Council shall review the Plan and revise it if necessary. Any revision
should take account of development which can be foreseen during the following ten years. Amendment
and review of the Plan shall be carried out in the same manner as this Plan was brought into effect.
Development Regulations can be changed through text amendments (the addition of a permitted use
within a use zone, additions to or changes in a condition, or a change in definition) or through map
amendments (a change to the zoning map). In order for consideration of any proposals to amend the
Development Regulations, Council shall require a clear proposal to be submitted that shows:
(a) The location of the subject property, to scale, showing lot dimensions, area, street
frontages;
(b) The proposed means by which the site is/will be serviced;
(c) The proposed location of all driveways and parking areas;
(d) Areas that are to be landscaped or left in a natural state;
(e) The proposed location of all buildings on a site;
(f) Identification of adjoining land uses; natural hazards; or sensitive natural areas; and
(g) The identification by a qualified consultant, of steep slopes and construction methods that
will be employed to ameliorate potential negative or hazardous effects of the proposed
development.
When considering proposals for developments that necessitate amendments to the Development
Regulations, Council shall give regard to the goals, objectives, policies and programs outlined in this
Municipal Plan, and whether or not the proposal is in conformance with the intent of the Municipal
Plan, Development Regulations and all other Town policies and regulations.
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APPENDIX A
BACKGROUND REPORT
Town of Gillams Municipal Plan 2017-27
Tract Consulting Inc.
Town of Gillams Municipal Plan
Background Report
Town of Gillams Municipal Plan 2017-2027
Town of Gillams
June 8, 2015
~
.....,....
TRACT
Contact Information:
Tract Project Contact
100 LeMarchant Road
St. John's, NL AlC 2H2
P. 709.738.2500
F. 709.738.2499
email: [email protected]
www.tractconsulting.com
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TABLE OF CONTENTS
TOWN OF GILLAMS MUNICIPAL PLAN
BACKGROUND REPORT
1 . 0
INTRODUCTION ........................................................................................................ 2
1.1
Purpose of t he Municipal Plan Background Document ............................................................ 2
1.2
Municipal Planning Boundary ................................................................................................... 2
2.0
SETTING THE CONTEXT ............................................................................................. 3
2.1
The North Shore Bay of Islands collaborative Integrated Community sustainability plan
(2010) .................................................................................................................................................. 4
2.2
Statements of Provincial interests ............................................................................................ 5
3.0
DEVELOPMENT HISTORY AND LAND USE PATTERNS ............................................... 6
3.1
Municipal Infrastructure ........................................................................................................... 7
3.1.1 Municipal servicing scenarios and costs ........................................................................... 8
3.2
Transportation Infrastructure ................................................................................................... 9
3.3
Residential Housing ................................................................................................................. 10
3.4
Commercial and Resource Uses .............................................................................................. 11
3.5
Institutional and Recreational Uses ........................................................................................ 13
4.0
GILLAMS TAX STRUCTURE AND FINANCES .............................................................. 14
4.1
Gillams Tax Structure .............................................................................................................. 14
Background Report to the M unicipal Plan 2015
Town of Gillams
5.0
DEMOGRAPHIC TRENDS .......................................................................................... 15
5.1
Population and Dwelling Characterisitcs ................................................................................. 15
5.2
Labour Force Demographics .................................................................................................... 17
5.3
Education Demographics ......................................................................................................... 22
5.4
Household Income Demographics ........................... : .............................................................. 25
5.5
Housing Demographics ............................................................................................................ 26
6.o
POTENTIAL DEVELOPMENT AREAS ......................................................................... 27
7.0
VISION STATEMENT ................................................................................................ 28
8.o
SUMMARY .............................................................................................................. 28
List of Tables:
Table 1: Population and Dwelling Characteristics
13
Table 2: Total Population by Age Groups
14
Table 3: Transportation and Median Commuting Duration to Workplace
17
By Gillams Residents
Table 4: Occupations held by Gillams Residents
Table 5: Work Activity and Number of People working Full-time or Part-time
Table 6: Education Profile of Gillams Residents
Table 7. Household Income of Gillams Residents
List of Figures:
18
19
21
22
Figure 1: Total Population by Age Groups
15
Figure 2: Labour Force Status
16
Figure 3: Occupation by Proportion of Population
18
Figure 4: Total population aged 25 to 64 years by highest certificate, diploma
20
or degree
Figure 5: Total population aged 15 years and over by major field of study - Classification of
Instructional Programs (CIP) 2011
20
APPENDIX A: RESULTS OF GOVERNMENT OF NEWFOUNDLAND AND LABRADOR
INTERDEPARMENTAL REVIEW PROCESS
Background Report to the Municipal Plan 2015
Town of Gillams
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Town of Gillams
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1.0
INTRODUCTION
The Town of Gillams is situated along route 440 on the north shore of the scenic Bay of Islands on the
West Coast of Newfoundland. The Town is one of the first settled communities in the Bay of Islands,
with its first European resident arriving around 1780. Early settlers made their livelihood from the
prosperous lobster, salmon and herring fishery and availed of the good soils and climate for agriculture.
Gillams continued to grow as a rural community, and in 1971 was incorporated as a municipality.
Today the Town of Gillams has a population of 405, with the majority of its workforce travelling to the
larger centre of Corner Brook to work. While the town has an ageing population, it continues to seek
ways to remain a vibrant sustainable town.
The Town Council has decided to develop its first municipal plan so that it can address the existing fiscal
and regulatory challenges of running the Town, the challenges of meeting citizens' needs and new
growth opportunities.
1.1
PURPOSE OF THE MUNICIPAL PLAN BACKGROUND DOCUMENT
This document was prepared to provide an accurate and up-to-date examination of current
conditions and an analysis of development and key trends. The report also will inform the
development of the Municipal Plan 2015-2025, and will thereby provide, where applicable, the
basis for policies proposed in the Municipal Plan.
1.2
MUNICIPAL PLANNING BOUNDARY
The establishment of a Municipal Planning Boundary is under review by the Department of
Intergovernmental and Municipal Affairs. In accordance with Sections 10 and 11 of the Urban
and Rural Planning Act, 2000, Council has determined that it wishes to prepare a Municipal Plan,
and has passed a resolution to that effect, and submitted application to the Minister for his
approval and designation of a municipal planning area. The planning area proposed by Council is
Background Report to the Municipal Plan 2015
Town of Gillams
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comprised of approximately 1488.8 hectares of land as illustrated on Figure 1. The northern
boundary of the proposed planning area was established so as to follow the higher elevations on
at the top of the Gillams Brook valley, to encompass and protect the steep slopes and
viewsheds.
In accordance with Section 11(2) of the Act, The Town of Gillams wishes to exercise control over
any proposed development that may impact the environmental, recreational and resource
amenities surrounding the town. The Town has a history of practicing historical and
environmental stewardship as witnessed through the development and maintenance of the 2.5
km Heritage Trail, which is well used and enjoyed by residents and visitors alike. Council wishes
to extend this trail following Gillams Brook in an easterly direction within that area of land
included in the proposed Planning Area Boundary. To this end, Council has submitted an
application for Crown title to the Western Regional Lands Office with respect to developing a
third section of the Heritage Trail.
Council appreciates that the proposed Planning Area Boundary extends inland into lands that
are traditionally used for forestry purposes. As many residents use wood fuel as their main
source of household heating, Council's intention is to allow these current forestry uses to
continue. Council's objective is to exercise judicious control over potential development
applications that may have impacts on the environment, steep slopes and valuable forested
areas within the proposed Municipal Planning Area lands.
2.0
SETTING THE CONTEXT
The Town of Gillams Municipal Plan 2015-2025 will expand upon and be consistent with other planning
documents and policies it has prepared. These include The North Shore Bay of Islands Collaborative
Integrated Community Sustainability Plan {/CSP} prepared in 2010 in collaboration with the Towns of
Hughes Brook, lrishtown-Summerside, Meadows, and Mclvers, the Town of Gillams Draft Strategic Plan,
2010; and policies established by the Town of Gillams.
Background Report to the Municipal Plan 2015
Town of Gillams
2.1
THE NORTH SHORE BAY OF ISLANDS COLLABORATIVE INTEGRATED
COMMUNITY SUSTAINABILITY PLAN (2010}
In 2010 the five towns of Hughes Brook, lrishtown-Summerside, Meadows, and Mclvers and
Gillams partnered to develop the North Shore Bay of Islands Collaborative Integrated
Sustainability Plan (/CSP). The ICSP is a plan developed in consultation with community
members for the purpose of maintaining long-term viability of communities. The ICSP provides
long- term direction for the North Shore Region and the five partner towns listed above, and is
based on the realization of five sustainability objectives: environment, culture, social, economic
and governance. The ICSP was developed to meet the requirements of the Canada-
Newfoundland and Labrador Agreement on the Transfer of Federal Gas Tax Revenues, in order
to secure continued access to the municipality's share of the gas tax funding.
The ICSP identified a number of concerns and challenges for the five Towns, includi_ng Gillams.
These will not be presented is detail here to avoid repetition, but will be included in the key
issues presented in the various sections of this report. However, a number of key issues are
listed below. These issues were identified for all five towns, and are particularly relevant to the
preparation of a Municipal Plan for Gillams:
-
Need for more crown land to be made available to the towns to allow them to expand
-
New projects to promote tourism including walking trails, lookouts, rest stops, signage,
landscaping program (trees, shrubs, benches, etc.)
-
Need for building (development) regulations to improve the appearance of the Town
and build civic pride
-
Need for more sharing of services between the Towns, i.e. Garbage collection and fire
protection
-
Need for more housing developments
Background Report to the Municipal Plan 2015
Town of Gillams
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2.2
STATEMENTS OF PROVINCIAL INTERESTS
As stated in Section 14 of the Urban and Rural Planning Act, 2000, a municipality must provide a
consultative opportunity for interested persons, community groups, municipalities, local service
districts, regional economic development boards, and the departments of the government of
the province.
Correspondence and communications with staff of the Department of Intergovernmental and
Municipal Affairs {MIGA) was initiated to inform the Department that the Town initiated the
municipal planning process. MIGA staff thus initiated an internal provincial consultation process
to solicit input from various departments and agencies that may have a provincial interest in the
municipal plan. Responses are included in Appendix A, and key points are summarized below:
Forestry Services: Extending the existing boundary further inland is a concern because it takes
in the Gillams domestic cutting block, an area traditionally used for residential wood fuel and
commercial purposes. Over the last ten years, between 100 and 160 domestic cutting permits
and a few commercial permits were issued annually. Expanding the boundary could restrict
these activities, which are considered vital to residents, many of whom use wood as their main
source of heat. Forestry activities should be a permitted activity within any future municipal
plans.
Mines and Energy: Gillams contains quarry permits, and has a high to moderate quality of
resource quarry material. Aggregate resource refers to a deposit of sand and gravel of sufficient
quality and volume to be quarried. Aggregate deposits provide the sand and gravel for
concrete, the upper layer or road bases, winter sand, and the like and are therefore an
important resource. The cost of construction aggregate, whether high-quality sand or gravel or
low-quality fill; increases significantly when transportation distance also increases. Thus,
development of the aggregate must be permitted to take place.
Water Resources Management: The proposed municipal planning area excludes the Meater's
Pond Protected Public Water Supply Area used by the communities of Gillams and Mea~ows as
this water supply source is protected by provincial legislation. However, all development
Background Report to the Municipal Plan 2015
Town of Gillams
activities in the protected public water supply area require prior approval under Section 39 of
the Woter Resources Act. Section 39 also details activities that are prohibited in the protected
area. The owner/operator of the designated area is responsible for protecting it by posting and
maintaining signs; conducting routine surveillance and monitoring approved development
activities.
Protection of all bodies of water is regulated under Section 48 of the Water Resources Act. A
15m buffer along the high-water mark must be adhered to, and a permit must be obtained from
Water resources Management Division before any work, such as culverts, fording, dredging, etc.
can be carried out.
Crown Land Administration: The Meater's Pond Protected Public Water Supply Area (PPWSA) is
shared by the municipalities of Gillams and Meadows, and therefore the Gillams Planning Area
Boundary should not include the PPWSA, as it the responsibility of both towns and protected
under the Water Resources Act.
Office of Climate Change and Energy Efficiency: The impact of climate change should be
considered in the municipal plan, especially as it relates to developments in close proximity to
rivers, flood plains and coastal areas. Provincial climate change projections, flood risk mapping,
and coastal erosion and sea-level rise data can be utilized in the development stage.
3.0
DEVELOPMENT HISTORY AND LAND USE PATTERNS
As noted in the introduction, Gillams was originally settled as a farming fishing community, and for many
years, the economy was tied to a strong herring, salmon and lobster fishery. Nonetheless, growth of
Gillams remained slow, and by the 1860s there were just five to six families, even though the population
of Bay of Islands was increasing as people migrated from the east coast of Newfoundland. By 1911,
however the population had grown to forty-seven people, and by 1921 there were eight-five residents.
Background Report to the Municipal Plan 2015
Town of Gillams
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Residents of Gillams continued to work mainly in the fishery until the 1920s and 1930s, when the
construction and development of the pulp and paper mill in Corner Brook provided new sources of
employment. Construction of Route 440 in the 1950s linked Gillams to Corner Brook and stimulated
growth of the Town: by 1961 the population had increased to 284, up from 192 in 1951. The Town was
incorporated in 1971 and, with a population today of 405 (2011 NHS), it has evolved into a
predominantly residential community with the majority of its workforce commuting to Corner Brook.
The settlement of Gillams historically stretched along Route 440 - also known as the North Shore
Highway - though this is no longer the case. There are now an additional eleven (11) roads in the Town,
in addition to the North Shore Highway. Today, growth of the town, though slow, is steady; the 2011
National Housing Survey reports that the population has grown by 1.2% since 2006; as well, twelve (12)
houses have been constructed since 2000. A challenge for the town's continued growth is the limited
land base available for residential and commercial development due to land ownership and
environmental challenges, such as steep slopes and bedrock. The cost of expanding and upgrading
municipal services is also a challenge. These challenges will inform the policy direction of the Municipal
Plan in further detail.
MUNICIPAL INFRASTRUCTURE
In consultations for this project and the ICSP, the need to upgrade the water and sewer system
has arisen as a priority among Council and residents. 81.3% of participants in a questionnaire
conducted for the ICSP agreed that enhanced water and sewer treatment is needed.
Gillams is completely serviced with water. However, poor water quality is an issue due to ageing
and inadequate infrastructure. Frequent water line breaks have resulted in low water
pressures, and this has necessitated boil water advisories. The existing 4" inch ageing water line
is also not able to provide adequate pressure for firefighting measures. The Town had
previously received funding to upgrade the intake, but Council did not proceed because the
tenders received to complete the work exceed the funding available.
Background Report to the Municipal Plan 2015
Town of Gillams
The municipal sewage system of Gillams services approximately 56 of the existing 171 dwellings
in the town and no commercial uses are hooked up to the sewer system. There is no current
primary treatment facility, and sewage is discharged untreated into the Bay. Funding of $1.GM
for Phase 1 and 2 of a new sewer system, which included primary treatment and a new outfall,
was approved in 2009 but Council decided to not proceed with the project due to cost. The
Town has since applied for capital works funding for the treatment plant and outfall in each of
the past three years, but has not been successful.
All new developments, residential and commercial, can hook into the sewage system if it is
accessible from their property. Buildings that cannot connect (because the sewage system is
inaccessible) install private septic systems and are required to follow relevant provincial
regulations. In contrast, hooking into the municipal water system has until recently not been a
problem for new developments. However, two recent homebuilders are unable to hook into
either the water or the sewage system due to their location, and will therefore have to install
both a well and a septic system.
Council recognizes that the water and sewer issue will have to be addressed in the near future.
3.1.1 Municipal servicing scenarios and costs
There are thus three different levels of municipal services within the Town of Gillams. These are
fully serviced, semi-serviced, and unserviced lands. Fully serviced lots are those with both water
and sewer services. Semi-serviced lots have only one municipal service - usually water services,
and unserviced lots have neither municipal water nor sewage services. Unserviced lots, when
developed, will have both a well and a private septic system. Council acknowledges that this is
not an ideal situation, but without the appropriate support and funding from provincial agencies
is not able to ensure that municipal services are available for or all developments.
The cost to taxpayers of connecting into the municipal water system is $500.00, while the
connection fee for water and sewer is $800.00. The Residential and Commercial Water Rate is
$220 per year, and $340 per year for water and sewer. This rate applies to all properties, even
vacant properties and properties with water shut off. Apartments also pay this base rate, plus
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Town of Gillams
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an additional $50 for each additional apartment. Moving forward, Council needs to examine the
provision of services for development in light of actual costs and consider options for full cost
recovery.
3.2
TRANSPORTATION INFRASTRUCTURE
The Town of Gillams has three (3) main roads or collector roads:
-
Route 440 allows east-west travel and connects the Town to the nearby communities
of Meadows, Mclvers, Irishtown - Summerside and Hughes Brook;
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Farm Road intersects Route 440 at what is essentially the centre of town and runs
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north-west to the municipal boundary extending beyond it into the region; and
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Forest Drive intersects Route 440 and then extends in an east-west direction parallel to
the highway extending into the municipality of Mclvers.
Besides the three roads listed above, there are an additional nine (9) roads in the Town that can
be referred to as local streets. These are:
-
First Avenue
- Wharf Lane
-
Bayview Crescent
-
Pioneer Avenue
-
Beach Road
-
Second Avenue
-
Parkvale Drive
-
Meadow Heights
-
Meadow Heights Extension
Other than Route 440, which is a provincial highway, all roads in the Town of Gillams are owned,
maintained, upgraded and snow cleared by the municipality. Other than Farm Road, all roads
are considered to be in good condition, however, road infrastructure and especially
maintenance is an ongoing issue. Farm Road, in particular, is impacted by high usage of
residents, industry and developers, and this has resulted in increased maintenance cost. In fact,
the bulk of road maintenance costs is spent on the upkeep of Farm Road as result of heavy
Background Report to the Municipal Plan 2015
Town of Gillams
equipment and truck traffic stemming from quarrying and saw mill operations located near the
end of Farm Road close to the municipal boundary. Currently the Town does not have a means
to recover any of these maintenance costs, nor does Council have a road building policy. This
causes strain on the municipal budget and inequitable spending on the maintenance and
upkeep of one municipal roadway. The Municipal Plan will examine options to help Council
ameliorate this situation.
3.3
RESIDENTIAL HOUSING
As stated earlier, in recent years Gillams has experienced a slow but steady pattern of
residential development. Twelve houses have been constructed since 2000, equating to 1.16
housing starts per year for single detached dwellings. This is a slower rate of growth than
reported in the Integrated Community Sustainability Plan {2010) for the other North Shore Bay
of Islands municipalities; however, it has been consistent for the last 14 years. Residential
development has occurred on privately owned vacant lands that were either sold or passed
down from family members. A common practice is the subdivision of family lands to allow
children to build new homes on traditional homesteads.
The municipality has limited land opportunities for future expansion. Areas adjacent to Route
440 are either privately owned or pose environmental challenges due to steep slopes and rock
outcrops. Along Farm Road toward the municipality's northern edge, the town is to its boundary
where the only private land suitable for development is privately owned and is currently
occupied by a sawmill operation. The area along Forest Drive to the western boundary may
hold potential for future infill development.
One area currently being considered for a significant residential development is the former
Hann Gravel Pitt off Farm Road. The developer has submitted to Council, a proposal to construct
the Appalachian Mountain View Retirement Village, which would see 73 detached two-bedroom
single level modular homes and a trail system developed on 40 acres of under-utilized land in
this former gravel pit. Council gave its support in principle to this project in 2012, however the
development is currently on hold.
Background Report to the Municipal Plan 2015
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Seniors and retirement housing were identified as a potential market niche for the North Shore
Bay of Islands in the collaborative ICSP. Gillams is well situated to become the ideal retirement
community in the Bay of Islands. If Council's goal is to become a retirement community, it will
need to give careful consideration to how it will achieve this and determine the best location in
the community for such development. Ideally, the location of a retirement village, or clustered
seniors' housing would have access to commercial, social and recreation amenities and services.
Council also needs to consider the design, location, and phasing of senior's housing
developments and how they are implemented. Rather than building only one type of housing,
ideally a variety of housing styles could be established that meet a variety of needs. Different
housing types and tenure need to be explored that address different senior residents' needs
such as mobility, and ageing in place and should include granny flats, in-house apartments, and
different housing types such as semi-detached, duplex, town houses and garden suites.
Consideration should also be given to the municipal servicing required. The Town will need to
ensure that adequate water and sewer services, as well as roads, are available to support such
developments. Improvements to infrastructure and increased commercial services would be
instrumental in attracting seniors to live in Gillams.
The pursuit of seniors and retirement housing could potentially launch Gillams on a path to
future growth and prosperity. Promoting housing that is intended to allow senior residents to
"age in place" in proximity to their community of family and friends, and incorporating the
proximity of existing amenities and promoting nature-based recreation with a network of
walking trails and gardens will help Gillams target a market looking for the ideal retirement
community.
3.4
COMMERCIAL AND RESOURCE USES
Five commercial/resource uses currently exist in Gillams. They include: a gravel pit operation, a
saw mill, auto body shop, storage facility and a real estate agent. There was one business start-
up in the last ten -year period, which has recently closed, and no new business ventures have
Background Report to the Municipal Plan 2015
Town of Gillams
been proposed. Another business, an artist's glass studio, has recently moved to a new location
outside of Gillams. In terms of other resource- based uses, one family owns the town's only
wharf and is actively involved in the fishery, and there are no forestry or wood harvesting
operations. The Town does not have a government wharf.
The ICSP identified tourism as an area that shows promise as an economic generator for all five
towns. The challenge for Gillams is its size and location - which make it a "drive through"
community on the North Shore. Most visitors touring the region are heading straight through to
their destination, which is Cox's Cove, the end point of the north shore. Nonetheless, this trend
provides an opportunity for Gillams to capture these tourists. The Town can achieve this by
making the drive more efficient for tourists, and expanding on the experiences available to
them.
Some things the Town can do that would help is to develop more effective signage, tourist pull-
off(s) to capture significant views, and educate the public on things to see and do in Gillams. The
ICSP offers other suggestions for the region that Gillams could implement, including
interpretation panels and trail development.
The Town can also focus on further developing its core area or "Town Centre," building on what
exists now: the Town Office/Fire Hall, Community Centre, beach, recreation areas, and seniors
centre. A Town Centre with beach access and look - offs or tourist pull-offs could become a
successful tourist attraction.
Development of the beachfront can provide entrepreneurial opportunities, providing an
increased tax base as well as supporting tourism in the Town. For example, small architecturally
interesting sheds can be built for local artisans to set up in the summer, and create a business
opportunity for the sale of food (coffee, ice cream and snacks), local arts and crafts, kayak and
canoe - rentals and the like.
Economic development opportunities other than tourism should also be explored. Home Based
Businesses may be such an opportunity. Currently home- based businesses do not exist in
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Town of Gillams
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Gillams. The Town could however allow home based businesses and ensure their good
management through policies and development regulations. To further ensure these businesses
are consistent with economic development objectives, the Town could publish a list of allowable
activities that have been judiciously selected by council. The Town policies and regulations
would also ensure that home -based businesses don't have negative impacts on adjacent land
owners/uses.
3.5
INSTITUTIONAL AND RECREATIONAL USES
While predominantly residential the town includes several non-residential uses that can be
categorized as institutional and recreation and that are owned either by the municipality or
privately owned and available to residents of Gillams and area. These include:
-
Town Office/Fire Hall - municipal
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Community Hall - municipal
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North Shore Development Fire Fighting Training Centre - North Shore Development
Association
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Seniors Centre - private
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The Heritage Museum - Heritage Society and housed in the basement of the Church
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St. James Anglican Church - private
There are also recreational amenities in the Town that are municipally owned, and operated
by the Recreation Commission. These are:
-
The Heritage Trail
-
1 playground
-
1 softball field
-
4 picnic areas
Background Report to the Municipal Plan 2015
Town of Gillams
GILLAMS TAX STRUCTURE AND FINANCES
4.1
GILLAMS TAX STRUCTURE
The Towns current mil rate is 7 .0 mils on the assessed values of the property. The minimum tax
is $400.00.
The total taxable assessment for the last five years is:
2010-$ 13,333,500
2011-- $ 13,537,300
2012 -- $ 13,825,100
2013 -- $ 17,061,300
2014 - $17,552,200
The projected tax assessment for 2015 is$ 17,638,400. Total revenues and expenditures for the
Town in 2014 was$ 294,663.01.
Background Report to the Municipal Plan 2015
Town of Gillams
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DEMOGRAPHIC TRENDS
5.1
POPULATION AND DWELLING CHARACTERISITCS
The current population of Gillams is 405, as reported in the 2011 National Housing Survey (NHS).
This represents a modest population increase of 1.2% since 2006, and is a much better outcome
than in 2001, when the Town experienced a population decline of 12.7%. Between 2001 and
2006, the population stabilized with a slight decline of -1.0%. See Table 1 Below.
Table 1: Population and Dwelling Characteristics
Population & Dwelling Characteristics
Gillams
Census Subdivision
#51
Population in 2011
407
41,004
Population in 2006
402
40,805
2006 to 2011 population change(%)
1.2%
0.5
Total private dwellings
186
19,287
Private dwellings occupied by usual residents
166
16,676
Population density per square kilometer
60.8
4.0
Land area (square km)
6.70
10,366.47
The median age of Gillams is 45.2 years; the provincial median age is 44 years. The largest age
group in Gillams today is 55-59 years, while provincially the largest group is 50-54. Seniors (from
60 years to 85+) make up almost 25% of the population. These results indicate that Gillams, like
the province, is ageing, but the town is ageing more rapidly. See Table 2 Below.
1 Census Subdivision #5 Incorporates the areas of Humber Arm North and South
Background Report to the Municipal Plan 2015
Town of Gillams
Table 2: Total Population by Age Groups
Total population by age groups
Gillams
Male
Female
NL
Male
Female
Total
Total
405
200
210
41,005
19,745
21,260
0 to 4 years
30
10
15
1,830
980
845
5 to 9 years
20
10
10
1,985
975
1,010
10 to 14 years
15
5
5
2,165
1,080
1,090
15 to 19 years
25
10
10
2,510
1,285
1,230
15 years
5
0
5
525
275
245
16 years
5
5
5
470
230
240
17 years
0
0
0
495
260
240
18 years
5
0
5
510
250
260
19 years
0
0
5
510
270
240
20 to 24 years
5
5
5
2,195
1,040
1,155
25 to 29 years
20
5
15
1,885
905
985
30 to 34 yea rs
25
10
15
2,200
1,000
1,205
35 to 39 years
25
20
10
2,480
1,135
1,345
40 to 44 years
35
15
20
2,850
1,355
1,495
45 to 49 years
30
20
15
3,345
1,630
1,715
50 to 54 years
35
15
20
3,490
1,680
1,815
55 to 59 years
40
25
20
3,530
1,720
1,815
60 to 64 years
25
15
10
3,255
1,600
1,655
65 to 69 years
30
10
15
2,415
1,195
1,220
70 to 74 years
20
10
10
1,760
870
885
75 to 79 years
20
10
10
1,390
640
755
80 to 84 years
0
0
0
975
390
580
85 years and over
5
0
5
735
270
465
Median age of the population
45.2
45.7
43.9
45.6
45.4
45.8
% of the population aged 15 and
85.6
85.4
83.7
85.4
84.6
86.1
over
The declining population of young people in the town is a concern for its long- term
sustainability. The pro portion of youth (ages O years to 19 years) is 22%, and less than t he
proportio n of senio rs. In the age groups 15 to 19 years no 17-year olds were recorded in the
2011 census, and only 5 females in each of the age groups of 15, 18 and 19 years.
Background Report to the Municipal Plan 2015
Town of Gillams
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Figure 1: Total Population by Age Groups
85 years and over
75 to 79 years
65 to 69 years
55 to 59 years
45 to 49 years
35 to 39 years
25 to 29 years
19 years
17 years
15 years
10 to 14 years
0 to 4 years
-
---
0
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10
20
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30
40
50
- Male
- Female
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The continued decline and migration of the population aged 24 and younger, along with the
aging of the working population, are significant demographic trends that will impact Gillams in
the foreseeable future. The significant number of residents nearing retirement age will need an
appropriate mix of housing types and services that will entice residents to stay in Gillams where
they can retire and age in place in their own community.
5.2
LABOUR FORCE DEMOGRAPHICS
Although Gillams' economy was initially resource based, today it is predominantly a residential
community. The Town does not have a significant commercial base and many residents
commute outside of the community for employment. 2011 census data reveal a labour force of
195 people over the age of 15 years; with 155 of those commuting to places of work for a
duration of approximately 30 minutes, and the majority (135) driving themselves either by car,
truck or van. See Figure 2 and Table 3 below.
Background Report to the Municipal Plan 2015
Town of Gillams
Figure 2: Labour Force Status
Total population aged 15 years and over by labour force status
In the labour force
Employed
Unemployed
Not in the labour force
Participation rate
Employment rate
Unemployment rate
Background Report to the Municipal Plan 2015
Town of Gillams
Total population aged 15 years
and over by labour force status
In the labour force
- Employed
- Unemployed
Not in the labour force
360
185
175
195
105
90
160
80
75
35
20
0
165
80
85
54.2
56.8
51.4
44.4
43.2
42.9
17.9
19.0
0.0
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Table 3: Transportation and Median Commuting Duration to Workplace by Gillams Residents
Mode of transportation
Total employed population aged 15 years and over with a usual place of work
or no fixed workplace address by mode of transportation
Car, truck or van - as a driver
Car, truck or van - as a passenger
Public transit
Walked
Bicycle
Other methods
Median commuting duration
Total employed population aged 15 years and over with a usual place of work
or no fixed workplace address by median commuting duration
Median commuting duration
155
135
0
0
0
0
0
155
30.8
80
65
0
0
0
0
0
80
35.7
75
70
0
0
0
0
0
75
30.2
The 2011 census data also reveals a small range of employment categories with trades and
equipment operators being the largest; followed by sales and service; construction, and health
care; business and administration; manufacturing; education and social and community services.
While most residents derive employment income in Corner Brook, a small number of
approximately 40 are employed or self-employed in and around the Town, this includes small
businesses and fishing. No home-based businesses are reported by Statistics Canada, or Town
staff. The opportunity to conduct a home-based business may have an important influence on
the town's economy. See Table 5 below.
Background Report to the Municipal Plan 2015
Town of Gillams
Table 4: Occupations held by Gillams Residents
Occupation
Total labour force population aged 15 years and over by occupation - National
Occupational Classification (NOC) 2011
All occupations
0 Management occupations
1 Business, finance and administration occupations
2 Natural and applied sciences and related occupations
3 Health occupations
4 Occupations in education, law and social, community and government
services
5 Occupations in art, culture, recreation and sport
6 Sales and service occupations
7 Trades, t ransport and equipment operators and related occupations
8 Natural resources, agriculture and related production occupations
9 Occupations in manufacturing and utilities
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Town of Gillams
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195
105
95
180
95
85
0
0
0
15
0
15
0
0
0
0
0
0
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10
0
10
0
0
0
50
0
35
55
55
0
0
0
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Figure 3: Occupation by Proportion of Population
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- Management occupations
- Business, finance and
administration occupations
- Natural and applied sciences
and related occupations
Health occupations
- Occupations in education, law
and social, community and
government services
Statistics Canada 2011 National Housing Survey also reports that of the 195 people aged 15 and
over in the labour force, 175 worked in 2010: 150 of this group worked full- time and 20 worked
part-time. See Table 6 below. As well, 115 people in the labour force worked between 49-52
weeks in 2010, and 25 worked 14-26 weeks.
Background Report to the Municipal Plan 2015
Town of Gillams
Table 5: Work Activity and Number of People working Full-time or Part-time.
Work activity
Total labour force aged 15 years and over by work activity in 2010
195
100
90
Did not work in 2010
0
0
0
Worked in 2010
175
95
85
1 to 13 weeks
0
0
0
14 to 26 weeks
25
20
0
27 to 39 weeks
0
0
0
40 to 48 weeks
0
0
0
49 to 52 weeks
115
50
65
Average weeks worked in 2010
42.4
40.3
44.7
Full-time or part-time weeks worked
Total labour force population aged 15 years and over by full-time or part-time
weeks worked in 2010
195
105
90
Did not work in 2010
0
0
0
Worked in 2010
175
95
80
Worked full-time in 2010
150
90
60
Worked part-time in 2010
20
0
25
5.3
EDUCATION DEMOGRAPHICS
The national Housing Survey 2011 reports that of the 235 people between 25 and 64, 165 have
postsecondary education, and have earned either a certificate, diploma or degree. The majority,
85 people, have a college, CEGEP, or ot her non-university certificate or diploma, 35 people have
an apprenticeship or trades certificate or diploma, while 30 people also have at least some
university experience.
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Figure 4: Total population aged 25 to 64 years by highest
certificate, diploma or degree
Background Report to the Municipal Plan 2015
Town of Gillams
- No certificate, degree or
diploma
- High school diploma or
equivalent
- Postsecondary certificate,
diploma or degree
Apprenticeship or trades
certificate or diploma
- College, CEGEP, or other non-
univeristy degree or diploma
Figure 5: Total population aged 15 years and over by
major field of study - Classification of Instructional
Programs (CIP) 2011
Personal, protective and transportation
services
Health and related fields
Agriculture, natural resources and
conservation
Architecture, engineering, and related
technologies
Business, management and public
administration
No postsecondary certificate, diploma or
degree
Background Report to the Municipal Plan 2015
Town of Gillams
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100
150
200
- Male
Female
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Table 6: Education Profile of Gillams Residents
Education
Total population aged 25 to 64 years by highest certificate, diploma or degree
235
115
120
No certificate, diploma or degree
45
35
0
High school diploma or equivalent
30
0
15
Postsecondary certificate, diploma or degree
165
70
95
Apprenticeship or trades certificate or diploma
35
25
0
College, CEGEP or other non-university certificate or diploma
85
30
60
University certificate or diploma below bachelor level
0
0
0
University certificate, diploma or degree at bachelor level or above
30
0
25
Bachelor's degree
0
0
0
University certificate, diploma or degree above bachelor level
0
0
0
Total population aged 15 years and over by major field of study - Classification
of Instructional Programs (CIP) 2011
365
185
175
No postsecondary certificate, diploma or degree
180
105
75
Business, management and public administration
10
0
0
Architecture, engineering, and related technologies
so
so
0
Agriculture, natural resources and conservation
0
0
0
Health and related fields
35
0
25
Personal, protective and transportation services
20
0
0
5.4
HOUSEHOLD INCOME DEMOGRAPHICS
The average household income in Gillams is $61,561, while the average after tax household
income is $54,646. This compares with an average household income of $68,979 and an average
after tax household income of $58,454 for the province. This level of household income is
comparable to the other communities of the North Shore
Background Report to the Municipal Plan 2015
Town of Gillams
Table 7. Household Income of Gillams Residents
Household Income In 2010 of private households
Median household total income ($)
Average household total income ($)
Median after-tax household income ($)
Average after-tax household income ($)
One-person private households
Median household total income ($)
Average household total income ($)
Median after-tax household income ($)
Average after-tax household income ($)
Two-or-more-persons private households
Median household total income ($)
Average household total income($)
Median after-tax household income ($)
Average after-tax household income ($)
5.5
HOUSING DEMOGRAPHICS
165
50,753
61,561
48,469
54,646
45
18,121
19,477
18,121
18,710
120
70,913
78,211
68,822
68,864
Statistics Canada 2011 National Housing Survey indicates there are 186 private dwellings in
Gillams with 166 of those being owner occupied on a full-time basis. Of these dwellings, 160 are
reported as single detached homes while 10 are flats or duplex units. The average house price in
Gillams in 2011 was $186,302 compared to a provincial average of (approximately} $225,000.
Town staff indicates that there are 171 dwellings in the town. There are no apartment buildings
and only 1 known basement apartment. Approximately 2 or 3 homes in the community are
vacant and there are two seasonal dwellings (cottages) whose owners reside permanently in
Ontario. In 2011, 31.2% of owner households held a mortgage. The average value of dwellings is
$186,302.
Background Report to the Municipal Plan 2015
Town of Gillams
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6.o
POTENTIAL DEVELOPMENT AREA(S)
Comprehensive Development Areas
Currently the Town of Gillams has no land for expansion. The most desirable expansion
opportunities may come in the form of residential developments designed to accommodate the
needs of a retirement community and seniors. A proposal to develop such a development on a
former quarry site, adjacent to Farm Road, was submitted to Council for its review in 2013. No
development approvals have yet been sought or issued and no construction has commenced.
However, with respect to long term planning, consideration should be given to designating
these lands as a Comprehensive Development Area for residential purposes to accommodate a
retirement village in the future.
Lands in proximity of existing water and sewer services and adjacent to Farm Road, just west of
the intersection with Route 440, are ideally situated for residential purposes especially as
housing for seniors. This land is fairly central and close to town recreation amenities and within
the area of existing municipal water and sewer services, both features that make it attractive for
housing development, including infill housing.
Lands along Route 440 in the vicinity of or adjacent to the existing Seniors Centre are also
desirable for residential purposes especially as housing for seniors. Centrally located and close
to amenities that benefit seniors, these lands can form a foundation for housing development(s)
that will attract retirees to Gillams and enable the town to promote itself as an adult retirement
community.
Seniors housing can be developed as infill housing in the form of granny suites, or garden homes
designed for small parcels of land, and a seniors' housing complex located close to the centre of
the town.
Background Report to the Municipal Plan 2015
Town of Gillams
7.0
VISION STATEMENT
The 2010 ICSP for the North Shore includes the following vision statement:
"The North Shore of the Bay of Islands has a two and a half century history of sustaining its citizens in a
rural setting. It wishes to continue and to enhance that role by providing a clean, safe, economically
viable environment for all its citizens, from youth to seniors, while promoting health and wellness,
protecting the environment and respecting the past."
A new Vision was developed specifically for the Town of Gillams and is presented below. This Vision is
based on consultations for the municipal plan and review of background documents, including the ICSP
Vision Statement above.
"The Town of Gil/ams is a rural town with a strong sense of place and respect for its history and cultural
heritage. The Town will strive to be economically viable by attracting new investments in the Town while
maintaining a high quality of life for its citizens. The Town will continue to grow in a manner that
supports recreation, health and wellbeing opportunities for residents of all ages, from youth to seniors,
and that protects the natural environment and preserves the character of the Town."
8.o
SUMMARY
The Background Report lays the foundation for the preparation of the Town of Gillams first Municipal
Plan, Development Regulations and accompanying mapping. It provides a concise chronology of the
settlement and development of Gillams, its founders and determined citizens, and highlights
opportunities for the future. These opportunities will be further examined and defined in the Municipal
Plan.
Background Report to the Municipal Plan 2015
Town of Gillams
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APPENDIX - PROVINCIAL GOVERNMENT COMMENTS
Background Report to the Municipal Plan 2015
Town of Gillams
Tract Consulting Inc.
PROVINCIAL DEPARTMENTAL COMMENTS TOWN OF GILLAMS
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Forestry
- There is a concern to the forest service because it close to triples the size of the existing municipal
boundary and extends far inland from the town of Gillams, into an area used traditionally for forestry
purposes and if approved, could restrict forest activities.
- The area in question falls within the Gillams domestic cutting block. Over the last 10 years Forestry
Services have issued between 100 and 160 domestic cutting permits annually to the residents of the
communities in the area. This area is vital to the residents of the area as most of them use fuel wood as
their main source of heat. There are also a couple of Commercial permits issued in the area. As stated in
the letter, there will be further development control implemented in the area. Forestry activities should
be a permitted activity within any future plans.
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Service NL
- Any development on the referenced property may require permits and/or approvals from the
Government Service Centre. It is advised that prior to the start of any development, the proponent
contact the Regional Office of the Government Service Centre, Sir Richard Squires Building, P.O. Box
2006, 84 Mount Bernard Avenue, Corner Brook, NL, A2H 6J8, Telephone {709) 6372204, Fax (709) 637-
2905 to discuss any relevant permits and or approvals that may be required.
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Mines and Energy
- The area contains quarry permits and there are high to moderate quality resources of quarry
materials. Currently issued quarry permits must be permitted to continue with tolerance for expansion
of operations beyond the current boundary of the permit. Development of the aggregate potential must
be permitted to take place.
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Water Resources Management
- The proposed municipal planning area includes the Meater's Pond Protected Public Water Supply Area
used by the Community of Gillams. All development activities in a protected public water supply area
require prior approval under Section 39 of the Water Resources Act.
Background Report to the Municipal Plan 2015
Town of Gillams
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- The owner/operator of a designated area is responsible for protecting the public water supply area by
posting protected water supply area signs and maintaining them, conducting routine surveillance of the
area and monitoring approved development activities. Section 39 of the Water Resources Act details
activities that are prohibited from protected water supply areas.
- Proponent's should maintain a minimum 15 metre wide undisturbed buffer along the high-water mark
of all bodies of water in the area. Persons must apply to the Water Resources Management Division for
a permit under Section 48 of the Water Resources Act for any work, inclusive of but not limited to
fording, culverts, bridges, stream diversions, infilling and dredging in any fresh body of water (including
wetland). The Water Resources Management Division does not recommend approval for the
development of residential properties within wetland areas, infilling of water bodies for residential
development, nor the diversion of streams to accommodate residential development.
- Wharf/ Boathouse/Slipway/Breakwater A permit under Section 48 of the Water Resources Act is no
longer required for some marine structures. However, the proponent must follow the new guidelines for
the Construction and Maintenance of Wharves, Breakwaters, Slipways and Boathouses as found here,
on the Government of NL website:
http://www.env.gov. n l.ca/env /waterres/regu lations/appforms/index.htm I
- Please note a permit will be required under Section 48 of the Water Resources Act for any infilling or
dredging work associated with these structures or other works in a body of water
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Crown Land Administration
- The proposed planning area expands behind the Town of Meadows. The Town of Meadows should be
consulted prior to approval given that the planning area could restrict future development.
- The proposed municipal planning area includes the Meater's Pond Protected Public Water Supply Area
{PPWSA) used by both the Town of Gillams and the Meadows. The planning area in this case should not
include the PPWSA as it is the responsibility of both towns.
Background Report to the Municipal Plan 2015
Town of Glllams
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Office of Climate Change and Energy Efficiency
- When developing a municipal plan, the Town of Gillams should consider the impact of climate change
on their Municipal Planning Area. Climate change is expected to result in more precipitation and more
frequent extreme weather events that may result in increased flooding and coastal erosion. These
factors should be considered when reviewing development proposals for developments in close
proximity to a river, flood plan or coastline. CCEE suggest that provincial climate change projections,
flood risk mapping, and coastal erosion and sea-level rise data be utilized in the development stage.
- More information can be provided by contacting Patricia King {729-1485) or at the following links:
I?! Climate Change Projections:
http:// www. tu rnbackthetide. ca/whats new/ NL_ Climate _Projections _Fu 11_ Report. pdf
rn Flood Risk Mapping: http://www.env.gov.nl.ca/ env/waterres/flooding/frm.html
I?! Coastal Erosion:
http://www. n r .gov. n I. ca/ n r /mines/ geoscien ce/ pu bl icat ions/ cu rre ntresea rch/ 2014 / Irvin e2014. pdf
Seal-level rise:
http://www.nr.gov. nl .ca/ mines&en/ geosu rvey / pu blications/CR2010/ 2010 _ Battersonliverman. pdf
- CCEE would like to draw the Town of Gillams' attention to recent updates (Section 9.36) of the
National Building Code, which now includes energy efficiency requirements for new buildings. It is
suggested that the Town comply with these new energy efficiency requirements for new developments
in their municipality.
Background Report to the Municipal Plan 2015
Town of Gillams
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