Grand Bank, Newfoundland and Labrador
· adopted 2012-10-23
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Municipal Plan for 2012-2022, Town of Grand Bank
As approved 10 December 2012
Town of Grand Bank
MUNICIPAL PLAN
2012-2022
photo credit: Town of Grand Bank web site
As approved by Council
10 December 2012
Municipal Plan for 2012-2022, Town of Grand Bank
As approved 10 December 2012
Blank page
Municipal Plan for 2012-2022, Town of Grand Bank
As approved 10 December 2012
TABLE OF CONTENTS
1.0 ADOPTION AND APPROVAL
1
1.1 COUNCIL RESOLUTION TO ADOPT; CLERK'S CERTIFICATE
1
1.2 COUNCIL RESOLUTION TO APPROVE; CLERK'S CERTIFICATE
3
1.3 PLANNER'S SEAL AND SIGNATURE
3
2.0 FOREWORD: APPROVAL PROCEDURE AND ADMINISTRATION
4
2.1 The Municipal Plan
4
2.2 Ministerial Approval
4
2.3 The Effect and Amendment of the Municipal Plan
6
2.4 Municipal Plan Administration; Role of Development Regulations
6
3.0 INTRODUCTION
7
3.1 Title and Components
7
3.2 Review and Amendments
7
3.3 Purpose of Plan
7
3.4 Municipal Planning Area
7
3.5 History
7
3.6 Public Consultation
8
4.0 KEY FACTORS AND APPROACHES AFFECTING DEVELOPMENT
10
4.1 Governance
10
4.2 Economy
11
4.3 Environment
12
4.4 Social Conditions
13
4.5 Cultural Matters
14
5.0 GOALS AND OBJECTIVES
16
5.1 Goals, Objectives and Policies
16
5.2 Goals for the Town of Grand Bank
16
6.0 DEVELOPMENT CONCEPT AND POLICIES
21
6.1 Overall Development Pattern
21
6.2 Policies Specific To Land Use Designations
21
6.2.1 Town Core
22
6.2.2 Residential
23
6.2.3 Commercial
25
6.2.4 Industrial
25
6.2.5 Public Use
27
6.2.6 Open Space
27
6.2.7 Conservation
28
6.2.8 Rural
28
6.3 General Land Use Policies
31
6.3.1 Surface Conditions
31
6.3.2 Municipal Services
31
6.3.3 Servicing Requirements
31
6.3.4 Streets
32
Municipal Plan for 2012-2022, Town of Grand Bank
As approved 10 December 2012
6.3.5 Property Maintenance
32
6.3.6 Visual Effects of Development
32
6.3.7 Development Near Waterbodies
33
6.3.8 Environmental Protection
33
6.3.9 Public utilities...
33
6.3.10 Archaeology Sites
34
6.3.11 Advertisements
34
6.3.12 Fuel Storage Tanks
34
6.3.13 Non-conforming Uses
34
7.0 MUNICIPAL PLAN IMPLEMENTATION
35
7.1 Introduction
35
7.2 Development Regulations
35
7.3 Development Control
36
7.4 Public Works
37
7.5 Development Schemes
37
8.0 INTERPRETATION...
39
8.1 Land Use, Boundaries, and Roads
39
8.2 Figures and Quantities Approximate
39
APPENDIX
40
Site Plan Evaluation Criteria
40
Future Land Use Maps 1 and 2
Municipal Plan for 2012-2022, Town of Grand Bank
As approved 10 December 2012
1.0 ADOPTION AND APPROVAL
1.1 COUNCIL RESOLUTION TO ADOPT; CLERK'S CERTIFICATE.
Under the authority of Section 16 of the Urban and Rural Planning Act 2000, the Council of the
Town of Grand Bank adopts the Municipal Plan for 2012 to 2022.
Resolved by the Council of the Town of Grand Bank on the 23th day of October, 2012.
Signed and sealed this
) day of 76-kciav , 2013.
May
(Council Seal)
Clerk: Lea-C4-)
Clerk's Certificate:
Certified that the attached Municipal Plan is a correct copy of the Municipal Plan for 2012 to
2022, adopted by the Council of the Town of Grand Bank, on the _23rd day of October, 2012.
Lit4
Clerk
Page 1
Municipal Plan for 2012-2022, Town of Grand Bank
As approved 10 December 2012
lank page
Page 2
Municipal Plan/Amendnicilt
REGISTERED
Number
Date ,
Signature
11-7
e20( - 003
Mayo
Clerk: L-CC
Municipal Plan for 2012-2022, Town of Grand Bank
As approved 10 December 2012
1.2 COUNCIL RESOLUTION TO APPROVE; CLERK'S CERTIFICATE
Under the authority of Section 16 of the Urban and Rural Planning Act 2000, the Council of the
Town of Grand Bank approves the Municipal Plan for 2012 to 2022.
Resolved by the Council of the Town of Grand Bank on the 10th day of December, 2012.
Signed and sealed this I
day of
, 2013.
I
Mem
Canadian Institute of Planners
Clerk's Certificate:
Certified that the attached Municipal Plan is a correct copy of the Municipal Plan for 2012 to
2022, approved by the Council of the Town of Grand Bank, on the 10th day of December, 2012.
Clerk (/*'0.0 W/Ct
1.3 PLANNER'S SEAL AND SIGNATURE
CANADIAN INSTITUTE OF PLANNERS CERTIFICATION
I certify that the attached Municipal Plan document has been prepared ifrAtasalece with
the requirements of the Urban and Rural Planning Act, 2000.
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Page 3
Municipal Plan for 2012-2022, Town of Grand Bank
As approved 10 December 2012
2.0 FOREWORD: APPROVAL PROCEDURE AND ADMINISTRATION
2.1 The Municipal Plan
This document and the maps contained with it, form the Municipal Plan for the Town of Grand
Bank. It has been prepared in accordance with the Urban and Rural Planning Act, 2000. Upon
completion of the required steps to bring it into legal effect, it repeals and replaces the
community's Municipal Plan which came into effect in 1985, including all amendments thereto.
The document presents statements regarding the Town's intentions with respect to the location
and manner in which development within its community shall take place. The maps show the
Grand Bank Planning Area divided into various land use designations. Within each designation
only specified kinds of development may take place.
The Municipal Plan is a legal document, binding upon Council and any person or group using or
proposing to use land anywhere within the Grand Bank Planning Area Boundary. All
development must conform with the applicable policies of the Municipal Plan after the date upon
which it comes into effect.
This Municipal Plan has been prepared following the preparation of a special purpose document,
an Integrated Community Sustainability Plan (ICSP). The ICSP is a document prepared in
accordance with a requirement that municipalities prepare an Integrated Community
Sustainability Plan in order to qualify for revenue from the Gasoline Gas Tax Fund, pursuant to
the Gas Tax Agreement signed between the Province and Local Governments.
The research and public consultation processes involved in preparing the ICSP were very useful
in revising the former Municipal Plan, as many topics and interests are common to both. The
process of preparing the ICSP has enhanced the depth of the Municipal Plan as it touches on
matters not directly related to land use, such as social conditions, cultural matters and
governance. However, the Integrated Community Sustainability Plan is not part of this Municipal
Plan, nor is it subject to the statutory status and procedures affecting Municipal Plans.
2.2 Ministerial Approval
For the Municipal Plan to gain full legal effect, the following procedure must be undertaken,
pursuant to Sections 15 through 23 of the Act.
In brief, the process begins with the preparation of a draft Municipal Plan under the direction of
Council. When a draft is prepared to the satisfaction of Council, it is submitted to the
Department of Municipal Affairs for review. When the Department has reviewed the draft
Page 4
Municipal Plan for 2012-2022, Town of Grand Bank
As approved 10 December 2012
document and is satisfied that it is acceptable in light of provincial and other government
agencies' interests, the Department officially releases it pursuant to Section 15 of the Act.
Council then, by resolution, is able to adopt the document pursuant to Section 16 of the Act.
Council must then advertise and provide for a public hearing at which objections or
representations to the adopted document are to be heard. The notice must appear twice in a
newspaper circulating in the community's area, in which Council states its intention to seek the
approval of the Municipal Plan. The first notice must appear at least fourteen days before the
hearing date. The notice must state where and when the Municipal Plan can be inspected and
clearly give the time and place for the Public Hearing.
The Public Hearing is conducted by a Commissioner appointed by the Council. A deadline date
fbr the submission of any written objections or representations is specified in the Act (two days
before the hearing). If no objections are received by the deadline, Council may cancel the
hearing and proceed directly to approve the Plan. If the hearing proceeds, the Commissioner
conducts the meeting and subsequently prepares a report including recommendations. Council
then considers the report and either approves the Plan (with or without changes) or withdraws the
proposed Plan. Council's approval is made pursuant to Section 23 of the Act.
An approved Plan then is submitted to the Minister for review and registration, pursuant to
Section 24 of the Act. For this, the Minister requires two copies of the Municipal Plan which
have been certified by the Clerk as having been adopted and approved by Council, the
Commissioner's report, and all written objections and representations that may have been
submitted at the Hearing. After reviewing the document and determining that it is not contrary
to law or a policy of the government of the Province, the Minister will register the Plan in the
Minister's planning registry and Council will publish a notice to that effect in the Newfoundland
and Labrador Gazette and in a newspaper circulating in the community's area. The date of the
publication of the notice in the Newfoundland and Labrador Gazette is the date upon which the
Plan comes into effect.
If the Minister chooses to not register the Plan, the document is returned to the Council with
information as to the reason for its unacceptability, and Council may then make changes and
resubmit the Plan in the same manner.
It is important to recognize that a new Plan does not come into legal effect until the notice of the
Minister's registration appears in the Newfoundland and Labrador Gazette and the newspaper ad
has appeared. Once in effect. the Municipal Plan is legally binding on Council and any person or
party proposing to use or develop land anywhere within the Planning Area Boundary.
A concurrent and parallel process is involved in the preparation, review, adoption, approval, and
coming into effect of Development Regulations.
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Municipal Plan for 2012-2022, Town of Grand Bank
As approved 10 December 2012
2.3 The Effect and Amendment of the Municipal Plan
The Municipal Plan is a legal document, binding upon Council and any person or group using or
proposing to use land anywhere within the Planning Area, unless specifically exempted by
superior legislation. All development must conform with the applicable policies of the
Municipal Plan after the date upon which it comes into effect.
The Act at Section 28 requires that a Municipal Plan be reviewed not later than every five years
from the date it has come into effect. The general intention is that Council may revise the Plan
with a view to the developments which can be foreseen for the next ten years. Consequently, the
time frame for this Plan is the ten year period of 2012 through 2022.
The Municipal Plan may be amended at any other time, in whole or in part, for legitimate
reasons that may have been unforeseeable at the time it had initially been drafted. Any such
amendment must be consistent with the Municipal Plan as the amendment will be read together
with and become part of the Municipal Plan.
2.4 Municipal Plan Administration; Role of Development Regulations
When a Municipal Plan comes into effect, the Council is required to provide for its
administration in conjunction with the Development Regulations. The Development Regulations
are written in conformity with the Municipal Plan in the form of land use zoning, subdivision,
and advertisement regulations. After adoption by the Council, these regulations must be
submitted to the Minister for approval in like manner to the process for Municipal Plans.
Development Regulations must comply with the requirements of the Urban and Rural Planning
Act. 2000, and standard Provincial Regulations have been developed to form the basis of these
regulations. The standard regulations currently are Newfoundland Regulation 3/01 made by the
Minister of Provincial and Municipal Affairs and which came into force on January 1, 2001.
Councils are also advised, if they have not already done so, to adopt the National Building Code
of Canada as its building regulation: the Town of Grand Bank did so in 1985. Builders must
comply with the Code.
The day-to-day administration of the Municipal Plan, and subsequent Development Regulations,
is in the hands of staff members authorized by the Council. Staff have the duty of issuing all
necessary permits approved by Council and making recommendations to the Council in
accordance with the Municipal Plan policies and implementing regulations regarding all
development in the Municipal Planning Area.
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Municipal Plan for 2012-2022, Town of Grand Bank
As approved 10 December 2012
3.0 INTRODUCTION
3.1 Title and Components
This Municipal Plan, when brought properly into effect, shall be known as the Municipal Plan
of the Town of Grand Bank, 2012 - 2022. The following text and Future Land Use Maps 1 and
2 contained herein constitute the Municipal Plan for the Grand Bank Planning Area.
3.2 Review and Amendments
As indicated in the Foreword, the policies and land use designations described in this Municipal
Plan are not intended to remain static but are subject to continuous review and alteration as
required in the light of changing economic, social, and technological developments, as well as at
the required five year reviews.
3.3 Purpose of Plan
A Municipal Plan guides growth and development within a Municipal Planning Area. It
provides a means of preventing problems that could occur if conflicting land uses are developed
too close to each other. It directs future growth so that it occurs in a manner whereby municipal
services and land resources are used most efficiently, thus preventing unnecessary increases in
servicing costs that can result from development becoming needlessly spread out. It also ensures
that aspects of land development like safety, aesthetics and environmental protection are given
proper consideration. Further, it may also set out information and policies on matters affecting
social conditions, cultural matters and governance.
3.4 Municipal Planning Area
The territory subject to this Municipal Plan is that which is included within the boundaries of the
Grand Bank Planning Area. The Planning Area is far larger than just the area defined by the
Town boundary. Indeed, it includes part of the area of the Local Service District of Grand Beach
and that community's protected water supply area, as well as a small part of the protected water
supply of the Town of Lawn, which is a matter of some concern in the context of governance, to
be further specified in this Municipal Plan.
3.5 History
It is appropriate to first provide an overview of the history of the community. It is not intended
to be more than a brief sketch, to establish an appreciation of the way in which the community
developed.
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Municipal Plan for 2012-2022, Town of Grand Bank
As approved 10 December 2012
Grand Bank was inhabited by French fishermen as early as 1640 and started as a fishing
settlement with about seven families. It was given the name "Grand Banc" because of the high
bank that extends from Admiral's Cove to the water's edge on the west side of the harbour. The
French census taken in 1687, showed the population of Grand Bank to be 45 individuals. The
first community had one church, three houses and 18 muskets. Some of the prominent names
included Bourney, Commer, Chevallier and Grandin.
The Town of Grand Bank can attribute much of its past and present growth and prosperity to its
proximity to the fishing grounds and its ice-free harbour. Original settlers thrived on trade with
the French and a vigorous inshore fishing industry. Grand Bank became the nucleus of the bank
fishing industry for Newfoundland and a service center for Fortune Bay. With the decline of the
salt fish industry the town's emphasis quickly shifted to fresh fish production. Enterprising
businessmen and town planners prepared the way for a fresh fish plant (present day Grand Bank
Seafoods Inc.) and a fleet of trawlers.
Today's fishery is unlike its predecessors: different species, different markets, and different
technology. The new opportunities in harvesting and processing surf clams appears to have
brought a unique stability and optimism to Grand Bank, unlike many other coastal communities
where the opposite is found.
The focus of the settlement was naturally the harbour and the fishery infrastructure that grew up
on the waterfront. Immediately inland was the principal commercial street along which retail
and service establishments were located, together with the primary public services such as the
post office, municipal building, and churches. Residential development clustered in a network of
compactly developed streets adjacent to the harbour and commercial centre.
For many years, this pattern was fairly static, until newer residential development began to
spread on new streets, in a less densely settled fashion, abutting the older core of the town. New
services and industries developed in a scattered fashion in that area, and when the "bypass
highway- was built, larger institutional and commercial uses such as new medical facilities, the
courthouse, and a major grocery store, located along it.
As time has gone by, new land uses have developed in the established street network, including
substantial industries, new school, and a variety of small entrepreneurial endeavours. These have
been developed both by redevelopment of existing structures to new uses, and by new
construction.
3.6 Public Consultation
This document, the 5 February, 2012. draft, is the first draft of the Municipal Plan to be
considered. It is to be reviewed by Council and staff to endeavor to identify revisions needed to
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Municipal Plan for 2012-2022, Town of Grand Bank
As approved 10 December 2012
make the document reflect Council's initial thoughts on the new Municipal Plan. It is
specifically intended to be revised as little or a lot to do so, as Council may desire.
In the first step in the planning process, the Town's consulting planner came to the community in
the fall of 201 I. He carried out much of the basic background information gathering and
consultation with staff and local public agency representatives as well, to build the initial
information needed for the assignment.
In addition, the usual step of contacting the Department of Municipal Affairs to arrange for the
circulation of a letter to all affected government departments and agencies, requesting that they
identify any plans or policies which would have a bearing on the review, was followed. This is a
routine procedure which the Department organizes to assist municipalities when planning
revisions to these documents. As those results came in, they have been considered in the work
on the Municipal Plan.
On the conclusion of the first steps above, a Planning Background Report was prepared, and is to
be made available to all concerned as a resource document. It is not a part of the Municipal Plan,
but provides information of interest related to it.
Once a satisfactory draft for discussion was prepared, the next step was an opportunity for
consultation in which residents were invited to meet with Town officials and the consultant for
an advertised public meeting which was held in early April, 2012. Following that, revisions
were made as needed, and Council has proceeded to adoption and appointed a commissioner to
conduct a public hearing at the earliest opportunity.
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Municipal Plan for 2012-2022, Town of Grand Bank
As approved 10 December 2012
4.0 KEY FACTORS AND APPROACHES AFFECTING DEVELOPMENT
The key points arising from the information and consultative processes described above are as
follows, organized under the useful Sustainability Pillar headings used in the ICSP:
4.1 Governance
The Town's municipal government appears to be well informed and proactive in dealing with the
many services and administrative tasks required of municipalities in this province. It is
extremely important to the sustainability of the community that the elected and staff officials and
the resources and management structure be maintained at a level capable of effectively providing
the services needed by the community, since there is practically no other local entity which can
effectively try to provide for any shortfalls in the community's need for essential services.
In a small community such as Grand Bank, the municipal government is very involved in
working as a partner with volunteer groups to develop and sustain a wide variety of essential
services (such as the volunteer fire department) and many amenities (such as recreation
programs). This is an important element in the sustainability of certain services and activities in
the community. Consequently, efforts should continue to be made by both Town officials and
volunteers to foster this spirit of partnership and for all to assist in the hard work that is needed to
sustain valued programs and services.
The Town is fully engaged in participation in regional committees and boards, such as the Burin
Peninsula Regional Waste Management Corporation and the Burin Peninsula Joint Council, and
thus the interests of the Town appear to be well advocated in those settings.
The existing Municipal Plan and Development Regulations were developed and adopted in 1985,
and thus are now a quarter century old. The 1985 Plan is quite complex, which is a detriment to
its effective use. This Municipal Plan has been more compactly \ ritten and deals with as many
development decisions by way of standard "as of right" requirements, which enable quick
approval where conditions are met, and discretionary approvals by Council for those cases
requiring an opportunity for public comment in an efficient time frame. The former Municipal
Plan called for many such decisions to be dealt with by the very time consuming and expensive
process of rezoning, for relatively straightforward matters.
Some minor parts of the protected water supply areas of the Town of Lawn and the community
of Grand Beach are within the Planning Area over which the Town of Grand Bank has plannirw,
jurisdiction. This is not a logical arrangement, as it burdens a Council with responsibilities that
rightfully ought to be shouldered by the municipal entity with the primary interest. These
discrepancies arose because of unintended overlaps of boundaries established for different
purposes, and should be remedied. Only the Minister of Municipal Affairs can alter the Planning
Page 10
Municipal Plan for 2012-2022, Town of Grand Bank
As approved 10 December 2012
Area Boundary, so the proper course of action is to request that this be done, setting out the
reasons for asking.
Part of the Local Service District of Grand Beach is within the Planning Area Boundary. The
Town of Grand Bank provides no direct property infrastructure or other municipal services in the
area (other than what is provided under regional auspices such as solid waste management) and
does not concern itself with local matters in that community. Consequently, it is not logical for
the community of Grand Beach and its Local Service District to be split by a Planning Area
Boundary and thus to have part of the community subject to planning controls administered by a
Town Council which has no desire to govern it. As said above, the only remedy is in the hands
of the Minister of Municipal Affairs, who should be requested to alter the Planning Area
Boundary so as to exclude the Grand Beach LSD and its protected water supply area.
4.2 Economy
As noted above, the fishery has been the historic base of the economy of the town, in common
with many communities on the Burin Peninsula and beyond in the province. The forward look is
reflected in the latest strategic statement by the Grand Bank Development Corporation (GBDC):
Today, Grand Bank is the home of a shell fishing industry, a modern plant owned by
Grand Bank Seafoods (a division of Clearwater Seafoods). It is also home to Dynamic
Air Shelters -- manufacturers of specialized, inflatable industrial shelters for the oil and
gas sector, as well as structures . for promotional and first response' uses.
Twenty-first Century Grand Bank boasts many innovative industries and businesses,
supported by modern infrastructure, a new hospital, up to date seniors' complex,
recreational facilities, and the community centre. Grand Bank is becoming synonymous
with innovation, prosperity and most recently a captivating tourist attraction.
The economic development planning process of GBDC has included an analysis of the
community's strengths and weaknesses in the context of economic development. Their report
represents the latest, most detailed and thoughtful analysis of this type, and is quoted more fully
in the Planning Background Report.
GBDC has identified five priority sectors to focus their efforts:
- Small business, manufacturing and women in business
- Tourism
- Fisheries
- Youth entrepreneurship
- Energy
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Municipal Plan for 2012-2022, Town of Grand Bank
As approved 10 December 2012
These focal points help in defining the policies in the Municipal Plan which wound affect the
ability of entrepreneurial initiatives to start up or expand. Many small businesses begin in
people's homes and outbuildings, and the Municipal Plan is intended to be sensitive to their
needs. Conversely, fisheries assets comprise both the individual fishers' needs for storage and
maintenance of their vessels and equipment and large industrial plants needed for fish processing,
cold storage and marine freight forwarding. In the latter case, the Municipal Plan will not unduly
restrict the ability of those enterprises to function.
Growing local employment and business strength is essential to maintaining the tax base and
services in the community, as it is difficult to sustain desired services on the tax base of a
community which is primarily a residential settlement. The policies and requirements set out in
the Municipal Plan and Development Regulations affecting economic development are intended
to be accommodating and encouraging, though not at a debilitating expense of valued amenities
of interest to households. This is the essential balancing act in regulating development in the
community, which is addressed in this Municipal Plan.
4.3 Environment
The Town is blessed with the beauty and amenity of its natural landscapes and the waters
surrounding it. Residents, including households and those in commercial and public sector
services, obviously care very much for the appearance of the community, as one from away is
immediately struck by the lack of litter, good grooming of landscaped areas, and generally well
kept buildings (though there are a few exceptions).
However, those are the attributes of appearance, and environmental issues concern more than
what meets the eye, this said not to diminish the value of the care being taken to maintain a top
quality appearance. There are particular opportunities to foster improvement and sustainability
of the town's natural environment, including:
- Publicizing and recognizing the efforts made by many property owners to keep up the
high level of caretaking of grounds and buildings, and taking effective action against
those very few parties whose properties are unsightly or dilapidated.
- Taking an active part in the evolution of the solid waste management system now
underway through the regional solid waste management authority, in which the Town and
other communities are partners.
- In the community, to add to the regional public education efforts concerning solid waste
management, with local initiatives in fostering recycling and minimizing use of
household hazardous materials. Visible and well publicized local programs are needed to
complement less visible regional improvements such as more effective collection and
disposal practices.
- Encouraging owners of properties to carry out energy use evaluations of their structures
and practices, to lead to greater energy efficiency.
Page 12
Municipal Plan for 2012-2022, Town of Grand Bank
As approved 10 December 2012
- For the Town and other corporate property owners and managers, systematically
investigating the opportunities to improve the usage and energy efficiency in its buildings,
water and sewer system mechanical equipment. street lighting and mobile equipment.
- Continuing the vigilance and development control related to water supply areas, under
Protected Water Area regulations.
- Further to the matter of protection of water supply areas, pressing on with needed
improvements to municipal infrastructure related to potable water and wastewater
management, as well as paving of streets to minimize erosion and consequent negative
impact on surface water quality.
- Reviewing recent experiences in surface water flooding, such as durine. Hurricane Igor.
I his has revealed the extent of areas in the community prone to flooding, and the
opportunity to better define areas in which development of structures should be severely
limited.
- Continuing with development of walkways and trails. to integrate residents with natural
environments and facilitate physical fitness and ''ell-being.
4.4 Social Conditions
Social conditions in the Town are always a concern, as the wellbeing of residents and the overall
quality of life are not to be taken for granted. Health, education, justice, public safety and
recreation are matters which heavily influence the quality of life experienced in the community.
Key points raised during research include the following:
- This is a caring community, in that many in the public sector and volunteers do what they
can to alleviate distressing conditions and promote healthy lifestyles through actions such
as a food bank and staffing recreation programs.
- The Town offers top quality recreation programs and facilities, but there is a heavy
reliance on volunteers to staff most organized activities. New facilities such as the
planned new community park in the town centre are commendable, but recreational and
social programs for seniors are equally desired, particularly for an aging population
whose quality of life is greatly enhanced by positive social and physical activity.
- Discussion of the need for day care for children of workers indicates that this service is
needed, both for enhancing the ability of individuals to take part in the work force and for
strengthening the labour pool available to local employers.
- Alternative housing for seniors who are in unsuitable housing or require some level of
assisted living make it possible for seniors to remain as independent and in their own
community as is feasible, but there is a constant shortfall. With an aging population, this
is a special challenge for the community. One response which can assist, and is
recognized in this Municipal Plan, is that of permitting "granny flats" or "subsidiary
apartments" in the terminology used in Development Regulations, in existing dwellings,
by which a small self contained apartment may be developed in part of an existing house
Page 13
Municipal Plan for 2012-2022, Town of Grand Bank
As approved 10 December2012
to initially accommodate one or two aging family members in an extended family, and
later, be available to other singles or pairs.
- The Town is fortunate in having a high quality emergency response service in the form of
the local volunteerfire department, an ambulance service, and police through RCMP
service.
- The ability of health and social services agencies, including the hospital, to provide
proper and timely care is limited by the availability of professional staff. Recruiting
personnel from outside the community is influenced by the quality of life and amenities
in Town. The Town needs to do all possible to enhance local conditions, including
recreation programs, beautification, availability of housing, education, and a welcoming
attitude toward newcomers, especially immigrant professionals who need positive
support in becorn ing settled in unfamiliar physical and cultural conditions.
4.5 Cultural Matters
The community has a very strong sense of identity and history, and it is obvious that the
community's leadership are determined to make the town a good place to live, work and visit.
Key points noted in research in this regard include:
- The great work ofvolunteers gives the community many of the cultural amenities due to
the work of the Heritage Society and like groups such as the Heritage Run Association.
The Town can play an important role in advocating and supporting these efforts in
meaningful ways, such as promoting local festivals, supporting regional tourism and
cultural organizations, and public recognition of the work of people who have made such
achievements possible.
- Facilities such as George C. Harris House and the Mariners' Memorial Garden
continually remind residents and visitors of the origins of the community, the way in
which the social and economic circumstances of the area have evolved, and the
relationship of h istory to a better appreciation of the present. Interpretation of local
events and scenes through contemporary theatre and the arts enriches the lives of those
who are interested, and entices the disinterested to become more aware of community life
and the natural environment. These are also powerful tourism assets, which relate to
economic diversification.
- It is all too easy to let a community's history and local culture slip away and become only
an artifact, but that is not happening in Grand Bank. However, the Town and residents
alike need to continuously develop and improve facilities and programs related to
preservation and appreciation of the history of the community. The most fragile aspect of
this task is that of preserving the legacy of the Town of Grand Bank, since local historical
preservation and presentation is usually seen as a matter of local initiative. The broader
story of coastal Newfoundland, or the province as a whole. or Atlantic Canada, is quite
likely to be carried forward by the provincial and federal governments, but keeping alive
the Town's own story is the Town's responsibility.
Page 14
Municipal Plan for 2012-2022, Town of Grand Bank
As approved 10 December 2012
- The feasibility of establishing a downtown/waterfront heritage district and designation of
heritage buildings is being considered. However, official designation is a weighty matter,
and some time is yet required to analyse this matter. Nevertheless, the presence of the
historic area along Water and Church Streets in the heart of the original commercial
district should be recognized and considered as the Town deals with applications for
development in close proximity to, or within, that area.
Page 15
Municipal Plan for 2012-2022, Town of Grand Bank
As approved 10 December 2012
5.0 GOALS AND OBJECTIVES
5.1 Goals, Objectives and Policies
Goals are frequently employed as the essential foundation for any planning endeavour whether it
is a personal career, a community plan, or a corporation's growth and facility strategy. The
formulation of goals, toward which efforts and resources are directed, and objectives, the more
precise and measurable steps needed to achieve the goals, can make the difference between
wasted effort and success. Policies are the courses of action that a government takes to achieve
its objectives.
By way of example in the Grand Bank case, one goal concerning the environment would he to
protect and enhance the quality of the natural environment, within which an objective (amongst
others) to follow from this goal is to protect and prevent contamination of the comm unity N\ ater
supply area. The obvious related policy would be to pursue the enactment of protective
regulations applied to the water supply area, amongst other policies.
5.2 Goals for the Town of Grand Bank
The ICSP seems to capture the spirit of the community's vision very well in the following quote:
The Town of Grand Bank will be a safe and healthy place that will engage its citizens,
making it a vibrant community both socially and economically. With a strong foundation
built upon respect, mutual support and open communication, the community can achieve
its goals so that positive growth can be sustained. Combining our values with our vision
of Grand Bank's fiaure promises to foster an environment where responsible citizens
actively participate in the progress of their town.
The subsequent Strategic Economic Plan produced by GBDC similarly describes that agency's
vision statement as:
To have a prosperous and vibrant Town with a diversified economic base developed
through new and continued investment and strengthened partnerships. The GBDC will
focus on identified growth sectors while preserving the community's heritage and
scenery."
Achievement of these visions involves much more than just the good will, imagination and hard
work of Council and its staff in concert with relevant agencies. It is true that only the Town as a
municipal government has the administrative capacity and the regulatory authority that can deal
ith infrastructure and control of development, but only the business community and senior
Page 16
Municipal Plan for 2012-2022, Town of Grand Bank
As approved 10 December 2012
levels of government can initiate major investments and interventions in commerce and
institutional services. However, the citizens of the community have the major role in making the
community the "vibrant" place called for in the vision statement.
Complementing the vision, this Municipal Plan endeavours to deal with development concerns
following these more specific goals and objectives related to land use:
A) Growth and Urban Structure
Goal:
To provide for orderly growth and development within the
community.
Objectives:
a) Council will undertake to use this Municipal Plan to guide its
exercise of powers and responsibilities for the provision of
services, the allocation of land uses, and the general
development of the community.
b) Land uses will be allocated so as to encourage economic
development and to preserve and enhance positive features
reflecting the heritage and amenities of the community, while
also recognizing natural constraints and limitations, in order to
improve quality of life in the community and protect life and
property, and to minimize effects on the natural environment.
d) Compact development of the community will be promoted, in
order to provide municipal services to properties as efficiently
as possible.
B) Housing
Goal:
To provide for the long-term housing needs of the community.
Objectives:
a) Housing shall be designed, sited and constructed to meet the
particular local conditions and needs of residents of the
community and to facilitate the greatest development of
available land resources through a wide variety of housing
forms.
b) To provide for a small number of new building lots each year,
by way of infill and in new subdivisions designed so as to
Page 17
Municipal Plan for 2012-2022, Town of Grand Bank
As approved 10 December 2012
present a pleasant appearance and an efficient arrangement of
street, water and sewer services.
C) Employment and Economic Development
Goal:
Objective:
To encourage institutional, commercial and industrial activities
that will meet the community's employment needs and provide
needed goods and services, and in particular to press for
strengthening the economic base and employment opportunities in
the Town and surrounding communities.
a) To monitor developments concerning the fishery and other
economic sectors, with a view to representing the community
promptly and responsibly on points affecting investment,
government regulation, environmental impact and community
development.
b) To provide for flexibility and rapid response to development
proposals, particularly those related to small business startups
and expansions, so as to facilitate business development.
c) To designate sufficient lands suitably located and serviced for
commercial and industrial development, to achieve an adequate
land base for economic development and a more efficient land
use pattern.
I)) Environment and Natural Resources
Goal:
To protect and enhance the environment and natural resources of
the community.
Objectives:
a) To limit development and use of lands outside of the
community's built-up area and areas designated for future
servicing and development, to those of a rural nature and those
which cannot be reasonably carried on within the built-up area.
b) To provide and protect a safe and sustained drinking water
supply by restricting non-compatible development in the
present protected water supply area.
c) To control development in order to minimize its detrimental
effect on the environment and to preserve the natural resources
Page 18
Municipal Plan for 2012-2022, Town of Grand Bank
As approved 10 December 2012
ithin the community, in particular the extraction of minerals
and aggregates.
d) To severely limit development on lands prone to flooding or
known to be sensitive inland waters fish habitat.
e) To work in conjunction With the new regional solid waste
management authority to implement modern management
facilities and programs, and to augment those improvements by
establishing efficient and effective means of minimizing the
amount of waste from the Town directed to final disposal, by
recognizing, the resource values of recyclable and compostable
materials and establishing local programs related to them.
E) Recreational Open Space and Cultural Facilities
Goal:
To establish, preserve and improve natural spaces, recreational
facilities, and cultural expression to meet local needs.
Objective:
a) To continually adjust and improve recreational and cultural
opportunities in the community for all age and ability groups.
b) To designate areas now established as open space areas for
outdoor recreational purposes and cemeteries, in and through
the town, to guide improvement projects and to endeavour to
preserve these assets from encroachment by buildings and
other activities.
F) Transportation and Highway Safety
Goal:
To provide a safe and efficient transportation network to move
people and goods into, out of and throughout the community.
Objective:
a) To develop a list of priorities for road improvements and work
toward maintaining the public streets in good condition.
b) To work constructively with the provincial government to
secure adequate funding to maintain roads in good condition.
G) Municipal Finance
Page 19
Municipal Plan for 2012-2022, Town of Grand Bank
As approved 10 December 2012
Goal:
To effectively manage the financial resources and commitments of
the community.
Objectives:
a) To implement municipal improvements which match both the
policies and priorities of the Municipal Plan and the financial
capabilities of the community.
b) To improve the cost effectiveness of municipal servicing by
implementing compact, carefully planned serviced
development.
Page 20
Municipal Plan for 2012-2022, Town of Grand Bank
As approved 10 December 2012
6.0 DEVELOPMENT CONCEPT AND POLICIES
This section presents a general view of the development pattern followed by policies specific to
the various land use designations set out in this Municipal Plan, as well as policies applicable to
all areas in the community.
6.1 Overall Development Pattern
The overall development pattern has been largely dictated by the natural features of the
landscape, the historic need for certain developments to be located in proximity to certain natural
features (such as fishing infrastructure being located on the shoreline), and the contemporary
feasibility of servicing new development with water, sewer and streets. The only significant
change since early days has been the construction of the bypass highway, as it opened
opportunities for major public uses such as the new courthouse and major commercial uses such
as the grocery store at the western end of Town. The compact, efficiently serviced settled area is
to be continued, as opposed to encouraging scattered development outside the serviced area.
Concerning the rural areas lying beyond the area now or intended to be serviced for urban
development, it is not the intention of this Plan to encourage or facilitate development in those
areas. The Plan will enable Council to consider extraordinary or special developments which
may logically be required to locate in the rural areas, such as mineral workings, livestock
farming, or animal kennels, should they come to pass. To do with residential development,
Council will neither oppose nor encourage it in the rural areas. However, Council will provide
for consideration of residential development as discretionary uses, to be able to respond to cases
where an applicant has been able to secure land and the various permits from the provincial
government which may be needed, and where there are no adverse effects which should be
prevented.
In addition to these considerations, it is a matter of serious public concern that public water
supply areas need strong protection, and that certain low lying and flat areas in the community
are prone to flooding. Recent experience has shown the dramatic extent of flooding which
extreme weather events can cause, and demonstrated the need to prevent development in flood-
prone areas. Similarly, certain watercourses are known to be sensitive fish habitat, a rare and
valued ecological feature worthy of special protection.
6.2 Policies Specific To Land Use Designations
The following policies apply only to development within the respective land use designations
under which they appear, unless stated otherwise. The land use designations correspond with
those on the Future Land Use Maps (at the back of the document).
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Municipal Plan for 2012 -2022, Town of Grand Bank
As approved 10 December2012
All policy sets include consideration of certain types of development as discretionary uses. In
evaluating applications for such uses, Council shall consider the policies set out for the
respective land use designation and shall call for and review information as may be needed to
evaluate proposals, as listed in the appendix to this Municipal Plan, the Site Plan Evaluation
Criteria list.
6.2.1 Town Core
As said in the historical sketch given earlier in this document, the focus of the initial settlement
pattern of the community was naturally the harbour and the fishery infrastructure that grew up on
the waterfront. Immediately inland was the principal commercial street along which retail and
service establishments were located, together with the primary public services such as the post
office, municipal building, and churches. Residential development clustered in a network of
compactly developed streets adjacent to the harbour and commercial centre. That area,
excluding the marine industrial uses on the waterfront, is designated for the purpose of the
Municipal Plan as the Tow! Core.
New development in the Town Core usually will be in close proximity to existing commercial,
industrial, public use and residential development. Except for the principal commercial streets
(Water and Church), the predominating land use is that of single unit residential use developed
on smallish lots, but with numerous non-residential uses mixed in. As this area has the potential
to accommodate small business startups in existing buildings, and redevelopment of existing
larger commercial and light industrial buildings to other uses, great flexibility is needed in the
ability of Council to promptly consider approval of applications for non-residential uses related
to economic development and non-traditional residential uses.
A number of existing open space and public uses are located in the overall Town Core area, but
these are not designated as Town Core for the reasons stated in the policies concerning those
uses.
It is the intention of Council to permit a wide variety of development types, while ensuring
amenity and safety of existing residential uses. The value of the historic district along Water and
Main Streets in the heart of the original commercial district of the town, as well as scattered
heritage properties in the Town Core, should be recognized and considered as the Town deals
with applications for development in close proximity to, or Nk ithin, that area.
The follow. ing policies will guide the growth and development of the Town Core area:
I .
The Town Core area is established as indicated on the Future Land Use Map 2.
Page 22
Municipal Plan for 2012-2022, Town of Grand Bank
As approved 10 December 2012
2.
Development of these lands will be enabled as of right for traditional forms of residential
use. Other residential types and commercial, light industrial and selected similar uses, public use,
and open space uses may be permitted as discretionary uses provided public safety and the
amenity of established residential uses are protected.
3.
Single and double dwelling residential uses will be permitted. Other residential
uses may be permitted as discretionary uses provided they fit in with the scale of the existing low
density residential uses.
4.
Small scale business uses may be permitted to occupy a minor part of a residence.
These uses are limited to convenience retail uses, service and office uses, and home occupations.
5.
Commercial uses including retail, business and personal service, medical and
professional office uses may be permitted. These uses will be compatible in scale and appearance
to surrounding residential uses. Commercial uses will be limited to those that will not be a
hazard or nuisance to residences and will be separated an adequate distance from adjoining
residences.
6.
Small scale light industrial and similar uses including indoor storage, repair and
manufacturing, service station and antenna uses may be permitted. Limited outdoor activity to
support those uses may be permitted provided that adequate parking and open storage areas are
available. These uses will be separated from and not be a hazard or nuisance to other uses, in
particular any nearby adjoining residential dwellings.
7.
New public uses may be permitted provided they respect residential amenity,
safety and privacy. Public uses include religious, educational, and community or government
services.
8.
Open space uses such as public parks, playgrounds and cemeteries may be
permitted. The amenity and privacy of nearby residential dwellings will be taken into
consideration.
9.
The cultural value of the historic area along Water and Church Streets as well as
scattered heritage properties will be considered as the Town deals with applications for
development in close proximity to, or within, that area.
6.2.2 Residential
The existing housing stock in the community is largely single dwellings. The residential
development pattern has been determined by the availability of land, road layouts, and central
water and sewer services, and, in a very small number of exceptional cases, by approval of
Page 23
Municipal Plan for 2012-2022, Town of Grand Bank
As approved I 0 December 2012
private water and septic systems. This has resulted in a moderate density pattern in the older
areas of the community adjacent to the Town Core, with a network of roads and houses. Newer
housing areas located more inland from the harbour and the Town Core exhibit lower density of
development with much lame lot sizes, wider roads, and newer municipal services.
The following policies w, ill wide the future growth and development of the Residential areas:
1.
The Residential designations are established as indicated on Future Land Use
Map 2.
2.
Land designated Residential shall be developed primarily for single and double
dwelling residential uses. Other types of residential development may be considered as
discretionary uses. Non-residential uses may be permitted by way of discretionary approval, but
evaluation of the applications shall give primacy to the residential role of the area. The range of
non-residential uses which may be permitted will be more limited than is the case in the Town
Core, but the role of residential settings as locations for home businesses and smaller scale free
standing commercial development is still recognized. Council will consider the impact of the
bulk and scale of proposed uses in residential designations to ensure that development does not
adversely affect the residential character and amenity of the area; provision of adequate space for
on site parking, loading, and buffering is provided; and, the primary use of the lot remains
residential.
3.
Residential growth shall be accommodated in approved comprehensive
subdivisions and through the orderly infilling of existing areas serviced in the community to
ensure the efficient use of available lands. Subdivisions will be located adjacent to existing built
up areas where municipal servicing can be easily and economically provided in the future.
4.
All new development and all new lots created shall have direct frontage onto a
publicly--maintained road or in the case of a new subdivision shall have frontage on a road
being constructed under the terms of a development permit issued by Council. All infrastructure
which is intended to be conveyed to the Town shall be designed and constructed to modern
engineering standards. The costs of providing services to any new subdivision development
shall be the responsibility of the developer.
5.
Development permits for unserviced residential development will only be granted
by Council when it has been established by Services NL and/or the Department of Environment
to Council's satisfaction that soil and drainage conditions are suitable to permit the installation of
an adequate means of sewage disposal unless connection to municipal services is available. and
where proper access is assured.
Page 24
Municipal Plan for 2012-2022, Town of Grand Bank
As approved 10 December 2012
6.2.3 Commercial
The Commercial designation is applied to lands which are intended to function as the primary
location for new larger scale commercial development, as well as light industry and similar
developments related to the regional economy. Also, given that some properties within the
designation are already developed for residential and other non-commercial uses, some latitude
should be given to permitting other uses, including further residential uses.
However, the primary purpose of the Commercial lands is to support larger scale commercial
and light industrial development. Most of the development in this class is located along the
bypass highway, as it features land areas large enough to support larger scale developments of
these types.
Aside from the lands along the bypass highway, only one other area could favourably support
large scale commercial use, that area being an oceanfront area on the east side of the harbour.
Although there are abutting residential uses there, commercial development at a significant scale,
such as larger stores or service shops, could develop there without unduly detracting from the
quality of life in the abutting residential area.
The following policies will guide the future growth and development of the Commercial areas:
I.
The Commercial designations are established as indicated on Future Land Use
Map 2.
2.
The purpose of the Commercial designation is to accommodate larger scale
business and personal services uses and mercantile uses. The proximity to substantial motor
vehicle traffic also suggests service stations can also be permitted.
3.
Assembly uses, light industry, special care institutional and benign outdoor uses
such as open space, cemetaries and antennae may be considered as discretionary uses, provided
that their specific features are compatible with the intended overall purpose of the Commercial
designation.
4.
Residential uses may be considered as discretionary uses, but approval should be
limited to those cases where a commercial or light industrial use would not be feasible on the
proposed location given its specific features, such as infilling on a small lot abutting an existing
residential use.
6.2.4 Industrial
Large scale industrial development historically has been focused on the fishery, in the form of
wharves and onshore processing, storage and chandlery. The currently used wharfage and
buldings associated with the fishery are located on the west side of the harbour. That area is
confined between the water's edge and the commercial development along Water Street. An
area on the opposite side of the harbour might logically have the potential to support marine
Page 25
Municipal Plan for 2012-2022, Town of Grand Bank
As approved 10 December 2012
industrial uses, but there is at present no suitable infrastructure there and the site abuts residential
uses. Those factors, plus the lack of demand for additional land for landing and processing fish,
result in that area not being designated for Industrial use.
There is thus very little potential to develop large scale industrial uses, or industries featuring
storage or use of hazardous or troublesome materials or processes, in the centre of the
community or the areas designated for other uses in the built up area of the community. Light
industrial uses are potentially compatible with other uses in close proximity, and the policies in
this Municipal Plan provide for discretionary approval of such uses in certain areas. However,
there is no area within the currently built up area of the community where large scale, possibly
noisy, dusty or obtrusive industries can locate, and this is a gap in the Town's economic
development assets.
An area south of the bypass highway and isolated from other uses has the potential to support
these types of intensive industries as well as light industry. The area is not currently serviced
with water and sewer services, but large scale industries may be able to be adequately served by
extension of central water but served with on-site sewage disposal systems, or, be served
adequately with both water and sewer through on-site systems. Since those requirements can
potentially be met, and the area is isolated from other uses, that area is to be so designated for
Industrial use.
The following policies will guide the future growth and development of the Industrial areas:
1.
The Industrial area is indicated on Future Land Use Map 2.
2.
Land designated Industrial shall be developed primarily for industrial uses
requiring large lots of land and substantial separation from other uses in order to mitigate the
negative effects of noise, dust, outdoor storage and processing, and the like. General industry
and light industry will be permitted as of right, and discretionary approval is provided for
hazardous industry, service stations, scrapyards, animal uses, conservation. antennae and
transportation uses.
3.
In considering an application requiring discretionary approval, careful
consideration will be given to any potentially deleterious nature of the proposed use, supply of
water and sewer as may be needed, and safe highway access. It is possible that environmental or
other forms of review and approval may be required by the provincial or federal government, and
in such cases the Town should be vigilant in advocating its concerns and objectives for the use of
the land.
Page 26
Municipal Plan for 2012-2022, Town of Grand Bank
As approved 10 December 2012
6.2.5 Public Use
Grand Bank has a variety of public uses, ie: cultural and civic uses and medical care and special
care establishments. These are valued features in the community as they are important in the
identity and sustainability of the community. While they could be simply included among the
permissible uses in other designations of land use, it is appropriate to put in place measures
which ensure an exceptionally deliberate and thoughtful process of decision making when
considering changing their purpose. Those decisions will rarely need to be made, but when it is
the case, the full process of amendment to the Municipal Plan and Development Regulations is
called for.
The following policies will guide the future growth and development of the Public Use areas:
1.
The Public Use areas are designated on the Future Land Use Map 2.
2.
Public Uses are highly valued features in the community and are not to be
changed to other uses without extremely careful review of the merits of the proposed changes.
3.
Change of use out of the Public Use designation shall be by way of amendment to
the Municipal Plan and Development Regulations.
6.2.6 Open Space
The Open Space designation is applied to benign recreational open space, conservation and
cemetery uses, in order to carefully control their redevelopment to other uses. The value
accorded these places, and the need to prevent hasty decision making should there be proposals
to develop these lands for other types of uses, is similar to the concern reflected in the Public Use
designation.
These uses often reflect many years of care and dedication by community members, for the
benefit of the community. It follows that any other use of these lands which might be approved
should be limited to equally desirable public amenities of a similar nature, such as outdoor
assembly uses.
The following policies will guide the future growth and development of the Open Space areas:
1.
The Open Space areas are designated on the Future Land Use Map 2.
2.
Open Space uses are highly valued features in the community and are not to be
changed to other uses without extremely careful review of the merits of the proposed changes.
Page 27
Municipal Plan for 2012-2(122, Tow n of Grand Bank
As approved 10 December 2012
3.
Change of use out of the Open Space designation shall be by way of amendment
to the Municipal Plan and Development Regulations.
6.2.7 Conservation
Certain areas in the community and surrounding lands include vitally important features
including water supply areas and sensitive fish habitat in certain watercourses. Shorefront land
within the built up area ofthe Town is prone to damage from overly intense use, and should be
kept in as natural a state as possible. Also, certain areas are known to be prone to flooding, and
strong measures are needed to prevent development there. These areas are well known and are
to be protected for the public good.
The following policies will guide the use and development of the Conservation areas:
I. The Conservation areas are established as indicated on Future Land Use Maps 1 and 2.
2. Lands designated Conservation shall not be developed and their use shall be limited to
human activities which are compatible with the intended function of these lands. The
only permitted uses shall be conservation uses. Notwithstanding that strong intention,
recreational open space. forestry and similar non-intrusive uses may be permitted as
discretionary uses, subject to careful control of the specific nature of the proposed use.
The discretionary uses include wharves, slipways and sheds along the coast to allow for
traditional small scale marine operations, and as well for antennae and public works and
utilities.
3. The water supply area is a protected watershed under Section 25 of the Department of
Environment and Lands Act. The Town will act assertively to protect the water supply
area from intrusion and inappropriate use, and cooperate and assist in any actions to that
end taken by the provincial government.
6.2.8 Rural
Rural lands that surround the community are used extensively by the local residents for
recreational purposes and provide a source of aggregate material used by the community for
construction, and includes the solid waste landfill site which has long served the community.
Also, a number of residential uses have developed along Highway 210 east of Marine Drive and
on side roads. Significant residential development has occurred over many years in Grand Beach,
but the Town does not, and does not intend to, provide municipal water and sewer services to it.
Page 28
Municipal Plan for 2012-2022, Town of Grand Bank
As approved 10 December 2012
The followini4 policies shall guide development in the Rural areas:
1.
Undeveloped lands surrounding the built up area of the Town of Grand Bank and
within the Planning Area boundary shall be designated Rural as indicated on the Future Land
Use Maps I and 2. However, lands required for Conservation purposes shall be designated in
areas which otherwise would have been Rural, and the Conservation designation shall take
priority when dealing with proposals to redesignate them as Rural.
Lands designated Rural shall be developed primarily for uses utilizing the area's
natural resources and land uses not compatible with the urban environment.
3.
Council will evaluate each development proposal to determine environmental
effects and set development standards to reduce or eliminate any negative impacts and protect
public safety and all amenities. In order to ensure full review of proposals for development in
the Rural areas, the only permitted uses shall be agriculture, forestry and conservation uses. Any
other uses may be considered as discretionary uses, in order to provide for consideration of a
wide variety of proposed developments, some of which may he unusual but nevertheless
desirable.
4.
Council shall not extend municipal services to any development located in areas
designated Rural. However, a developer may connect to municipal services if they should be
available, at his own expense.
5.
Council will prohibit all but very small scale mineral workings and related
activities from taking place within general view of developed areas of the community. Unless
absolutely necessary, existing quarry sites are to be exhausted before new sites are developed.
6.
Mineral extraction operations shall be conducted in a manner which will
minimize the adverse effects on water quality, fish and wildlife, and shall he buffered from
adjacent development areas of the community. All mineral operations will be required to
complete a site rehabilitation plan as a part of the development application.
7.
Council, when issuing a permit for any mineral extraction or mining operation,
may attach such conditions as are in its opinion necessary to properly regulate the operation.
Such conditions in particular may refer to the following subjects and matters:
-
Landscaping, screening and fencing;
- Rehabilitation;
- Noise, dust and pollution control.
8.
Council will ensure that a substantial buffer will be maintained around the solid
waste disposal site to protect against smell, rodents and other adverse effects of such an
Page 29
Municipal Plan for 2012-2022, Town of Grand Bank
As approved 10 December 2012
operation. Only those Rural uses not negatively impacted by the solid waste disposal site or a
related use may be located within the buffer zone. This use shall be permitted only when the
operation is fully under the control and management of a public authority.
9.
Regulation of forestry operations, including issuance of fire wood harvesting
permits or consideration of resource management, is not a function which the Town of Grand
Bank wishes to undertake, and thus the Municipal Plan is silent on the topic, other than to limit
forestry operations to certain areas.
Page 30
Municipal Plan for 2012-2022, Town of Grand Bank
As approved 10 December 2012
6.3 General Land Use Policies
Unless otherwise stated, the following policies apply throughout the entire Planning Area:
6.3.1 Surface Conditions
Any proposal for erection of a structure on a site having a slope in excess of 20 percent, or which
is potentially subject to flooding or any other hazard, must be certified by an engineer to ensure
that development of the site can take place without danger to health or safety. Otherwise, the
development will not be permitted.
6.3.2 Municipal Services
Some of the costs of running a municipal government are proportional to the overall length of
publicly maintained roads that must be upgraded, maintained, provided with street lights, water
and sewer services and electric utilities. Generally, the more spread out a settlement becomes,
the more these costs increase. Council intends to keep these costs from increasing through
implementation of the following policies:
1.
Vacant land and sites made suitable for infilling due to installation of municipal
water and sewer servicing are intended to be almost fully utilized before public infrastructure
services may be extended to new areas.
2.
All new streets must connect to another street where applicable, preferably in a
loop pattern, and dead end streets shall terminate in a cul-de-sac.
3.
An industrial or non-building use presently located in a predominantly residential
area or along a serviced road, and which does not require municipal services shall be encouraged
to relocate to an area that is not serviced, so that land that is, or will be, serviced can be used for
more appropriate urban development.
4.
Extensions to the water, sewer and road system which are not part of the Town's
capital works program shall be the financial responsibility of the developer. Nevertheless, any
such infrastructure which is intended to be conveyed to the Town shall be designed and
constructed to modern engineering requirements, and shall be subject to approval by Council.
6.3.3 Servicing Requirements
1.
All buildings that have or are required to have plumbing systems will connect to
the municipal water and sewer system. This requirement does not apply, at Council's discretion,
Page 31
Municipal Plan for 2012-2022, Town of Grand Bank
As approved 10 December 2012
to buildings in the Rural, Open Space or Industrial designation. This requirement also does not
apply to redevelopment of uses on lots that are not serviced by the municipal water and sewer
system unless Council determines the development should not be permitted unless it connects to
the municipal water and sewer system.
2.
With the exception of land uses associated with agriculture, forestry, saw
mineral workings or other resource or similar uses for which street frontage would be
unnecessary or undesirable, all buildings shall have the appropriate frontage on a publicly owned
and maintained road, unless other policies and requirements of this Plan specify otherwise.
6.3.4 Streets
I .
Local streets will be designed to maximize the safety and efficiency of vehicular
and pedestrian traffic
2.
After installation of water and sewer services it is intended that all public streets
\\ ill he maintained in good condition by the Town.
6.3.5 Property Maintenance
1.
All properties shall be maintained in clean and orderly appearance. The exteriors
of buildings, particularly commercial properties and any business.catering to tourists, as well as
yards and grounds, shall be properly finished and maintained to the satisfaction of Council.
Owners of dilapidated structures shall he required to repair them or remove them if they present
a safety hazard, on Council order pursuant to the Municipalities Act, Section 404.
2.
Council will ensure that buildings and property owned by the Council are well
maintained and landscaped, where possible, as a general example to the community.
3.
Wrecked or inoperable vehicles, machinery, debris, or equipment of any kind
shall not be stored or abandoned. Any vehicles or other machines that have value as a source of
replacement parts, shall be stored out of sight from streets or adjacent development. and only at
the rear of any buildings on the properties. Owners of such property shall be required to remedy
the offence or remove the items, on Council order pursuant to the Municipalities Act, Section
404.
6.3.6 Visual Effects of Development
Where a proposed development is of a size or nature that could in any way have negative effects
beyond the boundaries of the site upon which it is located (such as the creation of noise, smoke,
Page 32
Municipal Plan for 2012-2022, Town of Grand Bank
As appro' ed 10 December 2012
dust, fumes or unsightliness), Council may hold an advertised public briefing to ensure interested
persons are aware of the potential effects of the proposal and that their concerns are taken into
consideration before any decision is made on a development application. Screening through such
means as retention of original trees and other plant growth or erection of fences or any other
measures to render off-site effects acceptable «ill be required.
6.3.7 Development Near Waterbodies
Development will not be permitted within 15 metres of the highwater mark of the seashore or
any permanent or semi--permanent watercourse or waterbody within the Planning Area except
for the following, and then only with the approval from the Water Resources Division,
Department of Environment or Federal Department of Fisheries and Oceans.
1. Wharves, slipways and sheds along the coast to allow for traditional small scale marine
operations
Public works and utilities.
6.3.8 Environmental Protection
1.
Any proposed development shall not pollute any part of the corn m un it" .
Permission to develop may be conditional upon measures to prevent pollution during
construction, operation, or occupation of a building or site.
Garbage, refuse, abandoned vehicles and any other discarded materials of any
kind shall be disposed of only at a waste disposal site approved by the Department of
Environment. Such material shall not under any circumstances be used as fill for buildings lots.
6.3.9 Public utilities
Municipal and public utility works (including, associated structures) for such purposes as
provision of telephone, water treatment, pollution control and electric utility facilities may be
permitted at any location throughout the community provided due consideration is given to
potential danger and nuisance, the effect on aesthetics, and provided there are no reasonable
alternatives and then only subject to such conditions as Council sees fit to secure an acceptable
development.
Page 33
Municipal Plan for 2012-2022, Town of Grand Bank
As approved 10 December 2012
6.3.10 Archaeology Sites
There are no known archaeological sites within the Planning Area. However, any person or
company conducting development activities should be aware of the possibility of unearthing
significant archaeology finds. If any structurally significant items or artifacts are discovered it
should be reported to the Town and also Provincial Archaeology Office, Department of Tourism,
Culture and Recreation.
6.3.11 Advertisements
All signs and advertisements are to be tastefully presented (in terms of lettering and overall
design), properly situated and well maintained in order to prevent unwanted visual effects, and
must be approved by Council.
6.3.12 Fuel Storage Tanks
All fuel storage tanks (larger than 2500 litres) located within the Planning Area shall be required
to have adequate containment and dyking. Council shall require that all new fuel storage tank
installations be approved by the Department of Government Services and Lands. Council shall
also demand that fuel storage tanks be inspected annually by Department of Government
Services and Lands and copy of inspection certificate be submitted to the community. Council
shall also encourage the location of all commercial fuel storage tanks to be located in the
Industrial land use designation.
6.3.13 Non-conforming Uses
Existing development which does not conform with the requirements of the Municipal Plan and
Development Regulations may be continued as a non conforming use. Restrictions shall be
designed to limit its potential for replacement and expansion (to be specified in the Development
Regulations). Where a Non-Conforming Use is causing a nuisance or otherwise infringing on or
preventing allowable development, Council will encourage its relocation or discontinuance.
Page 34
Municipal Plan for 2012-2022, Town of Grand Bank
As approved 10 December 2012
7.0 MUNICIPAL PLAN IMPLEMENTATION
7.1 Introduction
In order to enforce and implement the policies of the Municipal Plan, Land Use Zoning,
Subdivision and Advertisement Regulations (referred to as Development Regulations), and a
capital works program, are required. The Development Regulations and the capital works
program must conform to Municipal Plan policies.
7.2 Development Regulations
Development Regulations ensure that development takes place in accordance with the goals and
objectives and within the framework of the land use policies of the Municipal Plan. The manner
in which the Regulations are drafted and the form in which they appear must comply with the
requirements of the Urban and Rural Planning Act. Like the Municipal Plan, these
Development Regulations are binding upon the Council and all other persons and organizations
unless specifically exempted by superior legislation.
Development Regulations consist of five parts: General Regulations, General Development
Standards, Advertisement Regulations, Subdivision of Land Regulations and Land Use Zones.
The first four are similar for all communities in the province, though variations are found.
However, the Land Use Zone section (Schedule C), will be extensively tailored to conform to
this Municipal Plan.
I. General Regulations
Among other things, the General Regulations govern matters relating to the
power and authority of a municipality to regulate development within its
community and establish conditions relating to the issuing of permits and local
appeal boards.
II. General Development Standards
The General Development Standards relate to such matters as the siting of
buildings on building lots, building height, setback from the street, buffers
between certain types of development, parking and access requirements, non-
conforming uses and other related matters.
III. Advertisement Regulations
Advertisement regulations control the size, shape. location, siting, illumination
and material construction of advertisements for the protection of the safety and
Page 35
Municipal Plan for 2012-2022, Town of Grand Bank
As approved 10 December 2012
convenience of the general public and neighbouring, properties and the general
aesthetics of the community.
IV. Subdivision of Land Regulations
Subdivision regulations govern the development and division of parcels of land
into two or more lots for the purpose of development. They include standards for
street improvements, lot sizes and lot layouts, procedures for dedicating land for
public purposes, acceptance of proposed engineering works and other necessary
requ irein ents as prescribed.
V. Land Uses Zones
Zoning is a means of implementing Municipal Plan policies. Land Use Zone
tables are presented in Schedule C of the Development Regulations. For each
land use zone a list of Permitted and Discretionary uses are listed.
In addition, the Development Regulations will now include certain standard content required by
virtue of regulations made by the then Minister of Municipal Affairs to apply to all
municipalities. That text, being Newfoundland Regulation 3/01, made under the Urban and Rural
Planning Act, 2000, came into force on January 1, 2001, and is included in all municipal
Development Regulations, to bring them more effectively to the attention of the reader.
7.3 Development Control
Before any development can take place, an application must first be made to Council for a
development permit. Development may take place only after Council has reviewed the
application and issued a permit. If the approval is considered as a discretionary use, the proper
process of advertisement and hearing as required by the Urban and Rural Planning Act, 2000.
shall be carried out.
Anyone who fails to follow the required application process or who otherwise violates the
Municipal Plan and Development Regulations can be prosecuted and may be ordered to remove
any illegal structure and restore the site and buildings on it to their original state.
Day-to-day administration of both the Municipal Plan and Development Regulations are the
responsibility of Counci l and its authorized staff members. It is the duty of authorized staff
members to implement the Municipal Plan through the Development Regulations, refer
development applications to outside agencies and to issue all required permits when approval is
granted.
An application to develop must be made on the proper application form prescribed by Council.
All applications must show as accurately as possible the location of the site of the proposed
development and include a plot plan, showing the location of existing and proposed buildings
and structures on the proposed site.
Page 36
Municipal Plan for 2012-2022, Town of Grand Bank
As approved 10 December 2012
Council will consider the application to determine whether or not it conforms with the
requirements of the Development Regulations and the policies of the Municipal Plan. If it
conforms, Council will approve the application and inform the applicant and state any conditions
that may apply. If the proposed development does not conform to the Municipal Plan and
Development Regulations, the application must be refused. Any applicant who is dissatisfied
with the decision of Council may appeal to an Appeal Board. The Appeal Board shall either
confirm the decision or require that Council's decision be varied or reversed.
Council has discretionary authority to grant a variance (not to be confused with a discretionary
approval) of up to 10% of a requirement applicable to a proposed development which does not
strictly comply with the development standards. However, the proposed development must
conform to the general intent of the Municipal Plan. A proposed development must not change
the permitted land use, or negatively impact on adjoining properties. Where Council deems it
useful and necessary so as to better consider the details of a complex project, a Site Plan may be
required of the applicant. Site Plan evaluation criteria are appended to the Municipal Plan.
7.4 Public Works
Essential to the implementation of the Municipal Plan is the carrying out of annual public works
projects. The community's water and sewer servicing program and any future capital works
program must conform with applicable policies and land use designations of the Municipal Plan.
Water and sewer projects must not contribute to sprawl, since that would conflict with the
Municipal Plan's goal of promoting compact development.
Council must also demonstrate its ability to cover its share of costs in any capital works requests.
It should also be recognized that extensions of the water and sewage systems required for (or as a
part ot) new development (including residential subdivisions) are the responsibility of developers
and not the municipal or provincial governments. Upon completion of the water and sewer
servicing program (or individual phases of it) improvements to local roads should be undertaken
in accordance with the Town's financial capability (and in conformity with the Municipal Plan)
on a prioritized basis.
The development of additional recreational facilities should also be carried out on a year--to-
year basis subject to the Town's financial capabilities.
7.5 Development Schemes
Sections 29 - 30 of the Urhan and Rural Planning Act, 2000 provide Council with the authority
(upon adoption of a Municipal Plan) to prepare and adopt Development Schemes. Development
Schemes are detailed localized plans outlining the manner in which a specified part of the
Page 37
Municipal Plan for 2012-2022, Town of Grand Bank
As approved 10 December 2012
community is to be developed. Through a Development Scheme, land may be reserved for such
things as public roadways, residential subdivisions, schools, parks or open space.
Development Schemes can also provide for the acquisition, subdivision, sale or lease of land and
buildings by the municipality. They are prepared and adopted in a manner similar to the process
of adopting a Municipal Plan, and when approved, form part of the Municipal Plan.
Page 38
Municipal Plan for 2012-2022, Town of Grand Bank
As approved 10 December 2012
8.0 INTERPRETATION
8.1 Land Use, Boundaries, and Roads
It is intended that the boundaries of the land use designations and location of roads and other
features shown on the Future Land Use Maps and the maps in the Development Regulations be
considered as approximate, as the available base mapping does not provide highly accurate
information. Therefore, amendments to the Municipal Plan or Development Regulations will not
be required to support reasonable interpretation by Council and staff concerning boundaries of
zones and areas. The intent and policies of the Plan are to guide the interpretation of the mapped
information.
Where feasible, the boundary lines of areas designated in this Municipal Plan are laid out to
follow lot boundaries and prominent physical features, including roadways and shorelines, and
shall be interpreted in that way. Where this does not apply, measurement from the maps and
relative location on the ground shall be considered.
8.2 Figures and Quantities Approximate
It is considered that all figures and quantities herein shall be considered as approximate only and
not absolute. Amendments to the Municipal Plan will not be required for any minor variance
from any of the proposed figures or quantities.
Page 39
Municipal Plan for 2012-2022, Town of Grand Bank
As approved 10 December 2012
APPENDIX
Site Plan Evaluation Criteria
When Site Plan approval is required, the owner or proponent shall prepare site development
plans, including landscaping, parking, lighting, roads and some or all of the additional items
listed below, according to the nature of the proposed development and directions of Council:
(a)
the dimension of the site;
(b)
the area of the site;
(c)
dimensions to indicate the location_of all buildings;
(d)
dimensions of buildings to provide comprehensive information of their plan form,
including future buildings or expansions;
(e)
the distance between buildings and all yards;
(f)
other uses, a breakdown of floor area by proposed use;
(g)
gross floor area of buildings;
(h)
dimensions of all parking areas, access roads and driveways;
(i)
function and type of landscaped areas;
landscaping plan and specifications including;
surface treatment (asphalt, grass etc.)
-
tree and shrub types and sizes
-
location and number of trees to be retained or planted
-
dimensions of buffer zones, driveways, etc.
number and size of parking spaces and location
location and size of signage
-
location and width of all walkways, footpaths
location of loading zones
(k)
proposed contours and drainage of surface runoff ditching;
(I)
surrounding land uses;
(in)
site constraints, e.g. right-of-ways which exist on site or adjacent to it, easements, fire
routes;
(n)
location and intensity specifications for lighting;
(o)
location and use of outside storage areas;
(p)
perspective drawings and plans showing 4 point building elevations and 2-way cross
sections of all buildings shown on the Site Plan
(q)
provisions for ongoing operation of features of the development which ma∎ involve
commitments or obligations of the Town of Grand Bank or its departments and agencies.
All site development plans shall be submitted to Council for approval.
Page 40
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10 DEC 2012
23 OCT 2012
02 OCT 2012
02 APR 2012
01 MAR 2012
05 FEB 2012
SCALE
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