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TRIM Cl>~ 201 / 1 CJ I tJ2'
M:unicipal Plan 2010 - 2020
prepared for:
Town Council of Red Bay
prepared by:
and
Nova Consultants Inc.
May, 2010
Re,d Bay Municipal Plan 2010 - 2020
Couincil Resolution to Adopt
Red Bay Municipal Plan 2010--2020
Under the authority of Section 16 of the Urban and Rural Planning Act 2000, the Council
of Red Bay hereby adopts the R,ed Bay Municipal Plan 2010- 2020.
Adopted by the Town Council of Red Bay on the //
day of J<l../U.(,,a,;-ff , 20 If
Signedandsealedthis
07
dayof /J?a,1-ch
, 20 II
Mayor:
(Council Seal)
Clerk:
Canadian Institute of Planners Certification
(MCIP Seal)
D.W. Knight Associates
. ... page 2
Red Bay Municipal Plan 201 0 - 2020
C OUNCIL R ESOLUTION TO APPROVE
Red Bay Municipal Plan 20 IO - 2020
Under the authority of sections 16. 17 and 18 of the Urban and Rural Planning Act 2000.
the Town Council of Red Bay:
a)
adopted the Red Bay Municipal Plan on the / 1
day of fant:t«hr . 20 I I
b)
Gave notice of the adoption of said document by advertisement inserted on the
11"Yfenday and the ..!..t_;Uh day of /Yltt-'1
. 20 IL in the
/V,?r-f/2cn1
/J(:.,n
newspaper.
c)
Set the
.;J6-IA day of f'Ylcl.'f
at
7 : oc; p.m.atthe5dmc,r..L1a.1k/2 ,o,-,
'lbw11
c~/1#-e-
for the holding of a public hearing to consider objections
and submissions.
ow under section 23 of the Urban and Rural Planning Act 2000. the Town Council of
Red Ba) approves the Red Bay Municipal Plan 20 IO - 2020 as adopted.
Signed and sealed this y-1-/2
dQ 05 ___ c)(..::;__~-'------- -· 2011
Mayor:
CJ ~v\ _~
Clerk:
D.W. Knight Associates
Municipal Plan/Amendment
REGISTERED
Number!::/:.. f Z-5"- -Z-V / I - () i) I
Date 62:z f1!;,· YI!
Signature_ =a~
(Council Seal)
.... page 3
Red Bay Municipal Plan 2010 - 2020
Table of Contents
1.
Background to the Plan
1.1
Introduction
1.2
Summary of Findings
1.3
Municipal Plan Re-commendations
2. Municipal Plan
2.1
Objectives
Economy
Heritage Preservation
Community Growth
Housing
Recreation and Community Services .
Environment
Municipal Services
Municipal Administration
2.2
Land Use Policies
2.2.1
Mixed Developmient
2.2.2 Commercial
.
2.2.3
Heritage Preservation .
2.2.4 Watershed Protection .
2.2.5
Rural and Resource
2.2.6 General Policies
2.3
Municipal Plan Implementation
2.3.1
Municipal Plan Conformity
2.3.2 Development Regulations
2.3.3 Capital Works
2.3.4 Subdivision Deve·lopment
D.W. Knight Associates
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Red Bay Municipal Plan 2010 - 2020
1. Background to the Plan
1.1 Introduction
The first Red Bay Municipal Plan was prepared in 1980. This Municipal Plan has
resulted from a revision of the plan adopted by the Red Bay Counci I in 1992. It was
prepared under the Urban and Rural Planning Act 2000.
The Red Bay Municipal Planning Area, as displayed in Map I attached to this document,
encompasses the Red Bay municipal watershed to the north, extends west towards
County Cat Pond and east beyond Steamer Cove. The planning area is coincident with
the community boundary. It is the result of a re-definition in 1996 (Provincial Regulation
915), which excluded County Cat Pond but expanded the western boundary generally.
The built community of Red Bay extends from Butt's Cove in the south, around the cove
known as the Strand and along the eastern and northern shoreline of the Red Bay Basin to
Northern Brook (see Future Land Use Map 2). Northern Brook was also a traditional
winter community for Red Bay settlers, as was Sou'west Cove on the west side of the
Basin. They were chosen as winter community sites due to the shelter they provided.
Other Red Bay historic sites include the former community of Tracey, Penney/Organ
Island at the mouth of the Basin, Saddle Island at the harbour entrance and nearby Twin
Islands. The entire shoreline of Red Bay and its environs has been occupied since the
sixteenth century by settlers of European origin, preceded by aboriginal peoples for
millennia. The international significance of these resources has led to Red Bay being
nominated as a UNESCO World Heritage Site, as will be focused on in this document.
Procedure for Adopting the New Municipal Plan under the Urban and Rural
Planning Act 2000
Following is a summary of the current procedure for preparation and adoption of
Municipal Plans under the Urban and Rural Planning Act 2000.
I. During preparation of the plan, Council shall provide an appropriate consultation
opportunjty for interested persons, community groups and provincial departments to offer
and receive information on the plan and development regulations. Depending on the
scale and complexity of planning issues to be resolved, methods of consultation may
include, e.g., the posting of community notices, local media advertisements, a public
information session or public meeting.
D.W. Knight Associates
.. . . page 5
Red Bay Municipal Plan 2010-W20
2. Once the document is forwarded in a form which Council is prepared to adopt, the
plan and development regulations are forwarded to the Planning Office, Department of
Municipal and Provincial Affairs, for the first of two reviews.
3. After any amendments are made following the Planning Office review, the plan is
adopted by Council. The Municipality is then responsible for setting up the public
hearing, selecting and compensating a Commissioner (und!er sections 18 and 19, Urban
and Rural Planning Act 2000). A notice of adoption and the date of the public hearing is
then pu1blished twice locally. The first of the two ads must be posted not fewer than 14
days before the date of the public hearing.
4. A p1erson or association may submit written statements of objection or support (two
copies), not fewer than two days before the date set for the public hearing. The public
hearing: may be cancelled if no objections are received.
5. After the public hearing, the Commissioner's report along with any recommended
changes and background information is forwarded to Council. Where a report is
submittted, Council shall consider it and may make changes to the plan and hold a new
public ]hearing, if necessary.
6. CoU1ncil shall then approve the plan and development regulations, as submitted in (2)
above or as amended.
7. Two copies of the approved plan and regulations shall be forwarded to the Planning
Office (2 copies of the text required and all maps signed and sealed). Specifics about
public ,consultation during plan preparation, the hearing date, etc should also be included.
8. The Plan and regulations are reviewed by the Planning Office, Municipal and
Provindal Affairs to determine if they are contrary to law or a policy of the government.
If there: is no such conflict, the plan and development regulations are then entered in the
Departmental Planning Registry by the Director of Planning.
9. A copy of the documents are then sent back to Council, who arranges for them to be
gazetted and advertised locally.
D.W. Kni9ht Associates
.... page 6
Red Bay Municipal Plan 2010 - 2020
1.2 Siummary of Findings
Following is a summary of the information collection and analysis carried out during the
preparati,on of this Municipal Plan.
A Rich Heritage
CIIICA 1920
Red Bay and its environs has a proud cultural heritage, with aboriginal occupation
extending back 9,000 years. The European presence started with the Basques in the mid
1500s. The exceptional natural harbour made Red Bay a natural choice as a site for
whaling, fishing, sealing and fur trading. It was chosen by Sir Wilfred Grenfell as the
location :for the first Co-operative in Newfoundland and Labrador. The Penneys
establish,ed major mercantile premises on Penney Island in the mid-1800s, and from
there, op,erated a stationer fishery for many years.
Red Bay·-s significance on the world stage entered a new phase in 1977 with the
archaeological discoveries of major Basque whaling operations in Red Bay and
elsewhere in the region, after several years of intensive archival research in the Basque
Country by historian Selma Barkham.
Since the: original discovery, archaeological research, on lan.d and under water, has led to
discoveries in Red Bay of Basque whaling stations (over 20), grave sites, try-works, the
San Juanr and three other galleon wrecks and several smaller fishing boats from the 16th
century. It has resulted also in an amazing re-assembly of a 16th century chalupa from its
original pieces retrieved from the bottom of Red Bay harbour; the only original boat of its
kind known to exist in the world.
D.W. Knight Associates
.. . . page 7
Red Bay Municipal Plan 2010 - 2020
Red Bay is a site of global uniqueness and significance as the most extensive and best
preserved example of 16th century whaling and whale oil processing technology in the
world. It is representative of the beginning of large-scale commercial whaling and
includes all aspects of the technology, including ships and pwcessing stations; the most
complete and best preserved remains of northern Iberian ship building technology and
whaling activity from the 16th century1-
The declaration of the Red Bay National Historic Site, establishment of the Parks Canada
Interpretation Centre and the inclusion of Red Bay on the list of sites to be nominated by
UNESCO have been major steps forward for the Town2-
The French period on the coast extended up until 1763. Pierre Constantin (1666-1750)
was a Qwebec Voyageur who was involved for much of his life in fishing, trapping and
trading concessions in Newfoundland and Labrador. In 1713, he was granted concession
to the cod! and seal fisheries between Red Bay and Pinware River. Two trading posts
were estalblished; in Red Bay (near the current school site) and at West St. Modeste (the
location oif his post near the Pinware River has not been confirmed. One dramatic event;
in 1719, Constantin's Red Bay post was totally destroyed in an Inuit attack and rebuilt a
few years later. There are French and Inuit archaeological sites on Twin Island.
There is some indication of contact and co-operation between the Basques and Innu
during the 16th century whaling period (which needs additional research).
In summary, Maritime Archaic, Recent Indian, Palaeoeskimo, Innu and Inuit along with
the Basqrnes, French and Settlers all lived on the same Red Bay shoreline and nearby
islands over the centuries, making a rich history of occupation. The Saddle Island West
site was occupied by the Recent Indian, likely the ancestors of the Innu of Labrador
today. 3
1 Consultation with Cindy Gibbons, Parks Canada.
2 The full si.te designated as a National Historic Site includes the community of Red Bay, Tracey,
Penney/Organ Island and Saddle Island. The area named as the "Administered Place", i.e., that which is
administere:d directly by Parks Canada, comprises the Visitor and Interpretation Centres, Saddle Island
(property owned by the Canadian Coast Guard currently being transferred to Parks Canada), a reserve
surrounding Saddle Island between the high and low tide line, and a water lot containing the wreck of the
San Juan. The remaining wrecks and other cultural resources at the bottom of the harbour plus the
remainder of the designated National Historic Site are protected under the provincial Historic Resources
Act.
3 Consultation with Provincial Archaeology Office.
D.W. Knight ,l\ssociates
.. . . page 8
The buildings on Penney/Organ Island have been a source of long-standing concern for
the community. They are historic remnants of the Labrador stationer fishery era. Sadly,
they are being left to rot and founder and the Town has no resources to purchase or
expropriate the property. A couple of the buildings are still salvageable, at least in part.
This is expected to continue as an unresolved issue at least for the near term.
11 , collection of Red Ba
intangible heritage, including the
resi1ients and ex-patriots, should also continue
to re a priority.
The current Municipal Plan identifies ten sites
as Historically Sensitive Areas (i.e., having
vahtable archaeological material). They range
from Tracey to Butt's Cove, including
Perney/Organ and Saddle Islands. These
should continue to be protected with a strong
Heritage Preservation designation in the new
plan.
The Town is exploring the implementation of a Municipal Designations program to
designate and protect structures and sites that it considers to be of significance to the
his1ory and culture of the community.
Ul\ESCO World Heritage Site
Red Bay ational Historic Site is on the short list of Canadian sites for nomination as a
UNESCO World Heritage Site. Preparation of the nomination docun1ents is underway
with the objective of submission to UNESCO this year. A decision regarding designation
as a World Heritage Site is expected before 2014.4 The proposed World Heritage
Boundary and Buffer Zone is shown on the map following. It is possible that the buffer
zone will be altered as the nomination process proceeds.
It is important that the Municipal Plan express Council's intent to accommodate and
support the UNESCO nomination and that it contain the policies needed to preserve the
archaeological and historic resources within the World Heritage Boundary.
A significant proportion of the property within the proposed boundary is owned by Parks
Canada. It is important that this land, along with the remaining land within the area be
designated Heritage Preservation and/or be subject to an assessment process prior to any
proposed development being considered for approval. This assessment should include
consultation with Parks Canada and the Provincial Archaeology Office.
4 Consultation with Cindy Gibbons, Supervisor, Red Bay National Historic Site.
D.W. Knight Associates
. .. . page 10
111000
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Municipal Services
Water Supply
Red Bay Municipal Plan 2010 - 2020
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The municipal water system in Red Bay is supplied from a pump house located adjacent
to Northern Brook. The water is chlorinated prior to entering the distribution system. A
series of 200mm and 150mm diameter HDPE water mains provide water for both
domestic and firefighting purposes throughout the Community. Hydrants are situated in
the serviced areas of the municipality. Approximately 85% of the Community is serviced
by the system.
Sanitary Sewer System
A piped sanitary sewer system consisting of PVC sewer mains, manholes, lift stations
and a marine outfall services approximately 60% of the Community. The Basin area of
Red Bay presently does not have a sewage collection and disposal s stem. lndi idual on-
site sewage systems in the Basin area have malfunctioned, primarily due to poor soil
conditions and in some cases, improper installation.
Council is interested in investigating alternative means of sewage treatment and disposal
to service this area of the Community. Alternative sewage disposal systems (such as the
D.W. Knight Associates
.. .. page 11
Red Bay Municipal Plan 2010 - 2020
Bio-cycle and Blivit systems being used in Ireland for domestic and commercial
purposes) are being used around the world. They are expensive but possibly would cost
less than the traditional method of piping sewage into the Basin (and would be more
environmentally friendly).
Solid Waste Disposal
The disposal site in the Eastern Brook area is adequate to serve the needs of the
communjty until the proposed regional site is operational (scheduled for 2014).
Recreation
__,,,.---=--
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Trails - Building the Tracey Hill boardwalk was a major
community project. The Boney Shore Trail is the
beginning of the planned Pioneer Footpath which will
follow the traditional walking trail along the coast to
Pinware and beyond. There is also a loop hjking trail
established on Saddle Island.
·--- ,·--~....---
.
The Red Bay Tourism Development Plan, prepared in 2007
called for a heritage walk in the Strand area. There is also a
traditional walking path from Butt's Cove to Steamer Cove
and beyond which, if developed, would be an excellent
extension of the heritage walk concept.
The Basque Whalers Snowmobile Trail ends at Red Bay (beginning at the Quebec
border). It enters at Sou'west Cove and continues north near the intersection of the
highway to Mary's Harbour (part of the Trans-Labrador Winter Trail which extends to
Labrador West).
Indiscriminate A TV use is an issue in the planning area. Council has recently discussed
the possibility of working with the Quebec Labrador Foundation to develop an
environmental conservation plan for the community and surrounding area.
There are initiatives being undertaken in the community with Quebec Labrador
Foundation and Eastern Habitat Joint Venture to protect the local population of eider
ducks and other sea birds.
Recreation Facilities include those at Basque Memorial School, the playground and
youth centre near the Town Hall.
Community Gardening - Residents keep vegetable gardens in two locations; south of the
Town Hall and near the old well house.
Transportation and Communication
The major transportation breakthrough in 2009/10 was completion of Route 510 to
HVGB. This completed a highway link from the Labrador Straits to Labrador West and
Baie Comeau, Quebec. With the Provincial Government's goal of paving the route, this
... . page 12
Red Bay Municipal Plan 2010 - 2020
represents the beginning of a new era in transportation for the residents of Red Bay and
Labradorians generally.
Red Bay is the transition point from the paved road to the gravel and is already showing
signs of being a stopping point by travellers in both directions.
The community airstrip is owned by the provincial government. Strait Air does basic
maintenance and uses it occasionally.
Other services are provided by Smart Labrador, Canadian Broadcasting Corporation and
Bell Aliant.
The Local Economy
Traditional employment sources (mostly fishery-related) have been in decline for several
years, leading to significant outmigration, with young people and families seeking
opportunities elsewhere. This has resulted in an aging workforce, with education levels
below the provincial average5-
Employment sources in the community include Parks Canada, Basque Memorial School
and retail, tourism and service outlets. The employment rate for 2005, for those aged 15
and older was 61 .4%, slightly lower than the provincial rate for the period, 63.3%.6
Indicators for 2008 include that 9.1 % of the population received income support
assistance at some point during that year. In addition, 57 .1 % of the labour force collected
employment insurance in 2008 ( compared to the provincial rate of 34% ).
Fishery
While the fishery is in a state of flux, it is the traditional source of employment in Red
Bay. Local employment in the fish processing sector is still strong and contributes to the
economy of Red Bay, even though workers commute to jobs in other centres.
It is hoped that it will be reinstated as a player in the local economy during the Planning
Period.
Tourism
The tourism sector shows promise for Red Bay. Of note is the investment by Parks
Canada in archaeological research, infrastructure (visitor centre and information centre)
and programming. Additional investment has also been made in the former Tracey Hill
boardwalk, trail development, community entrance pavilion, the exhibit at the Town Hall
and currently, the dock and former fish plant (as a reception centre for cruise ships).
An economic impact assessment conducted in 2004 suggested that incremental visitor
expenditure in the Labrador Straits was generating GDP of around $670,000 for the
regional economy and personal income of $485,000 (25 person years of employment).
The analysis also estimated potential tourism benefits, based on the accommodations
5 Census Canada 2006 reported 4 1.9% of residents 18-64 years without a high school diploma (25.1 % for
the province).
6 Community Accounts, Government of Newfoundland and Labrador, www.communityaccounts.ca
D.W. Knight Associates
. . . . page 13
Red Bay Municipal Plan 2010 - 2020
capacity existing at the time. The conclusion was that (in addition to the $670,000),
incremental GDP of $551 ,000 and personal income of $398,000 (21 person years) could
be generated in the region
7
.
Red Bay hosted a successful visit by the Holland America cruise line in 2009 and
additional visits by both adventure and large ship cruise companies can be expected with
the anticipated UNESCO designation, with the expedition cruise sector holding the most
potential.
The Red Bay Tourism Development Plan8 proposed several development initiatives,
including:
-
Water based activities (boating, diving),
-
Heritage walks,
-
Craft development, and
-
Interactive sessions with storytellers.
The prediction was for a 25-30% increase in visitation by 2015 (8-10,000 visitors
recorded between 2003-2007). This could provide opportunities for small enterprise,
including possibly a small inn.
There is optimism around the continued development of Labrador as an exotic
destination, being pursued by Destination Labrador, www.destinationlabrador.com. A
multi-pronged approach is being taken, aided for example by highway access
improvements and the recent announcement of Mealy Mountains National Park.
Oil and Gas
o This sector could bring opportunities to the Labrador Straits for employment and
service in future. From the mid 1970s to the early 1980s, an exploratory drilling
program was undertaken on the Labrador Shelf by the Labrador Group of
Companies, led by Petro-Canada.
o
Significant reserves of gas were reported by the operators.
o One of the reasons for abandoning the project was the high risk of iceberg scours
(study conducted in 1983 off Cape Harrison). Improved modelling techniques
however have shown that the level of risk is "about 100 times less" than was
predicted in 1983. This could result in renewed exploration activity.9
7 An Economic and Social Case Study of Tourism Development in the Labrador Straits, Paul Parsons,
ACOA, 2004.
8 Red Bay Development Plan, D.W. Knight Associates, as part of a project plan to re-develop the former
fish plant, Nova Consultants, 2007.
9 Stuckless, Janice, "Labrador Iceberg Risk Overrated", Atlantic Business, Volume 14, Number 2, 2003.
o.w. Knight Associates
.. . . page 14
Red Bay Municipal Plan 2010 - 2020
Conclusion
o The combination of opportunities outlined above suggest that there will be new
business and employment opportunities for Red Bay during the 2010 - 2020
Planning Period.
o The sensitive terrain and harsh climate make land expensive to service; hence the
need for sound, innovative planning and engineering 'green" solutions.
1.3 Municipal Plan Projections and Recommendations
Population Growth
o As shown in Table 1, the population of Red Bay has been in decline since 1986,
with 9% population loss recorded in the 1986-2001 and 2001-2006 inter-censal
periods.
Table 1: Population Change, Red Bay, 1976 - 2006
Year
Population
Percent Change
1976
301
-
1981
316
5.0
1986
335
6.0
2001
265
- 9.0
2006
240
-9.0
o 89.5 percent of the population was over 15 years of age compared to 82.7 for the
province.
o As with other Labrador communities, the residents of Red Bay have a strong
attachment to place; therefore there is a high likelihood of ex-patriots moving
back when employment and business opportunities arise.
o In 2006, there were a total of 75 private dwellings in Red Bay to serve a
population of 240, or 3.2 people per household.
Growth Projection
o The extent to which new business and employment opportunities in tourism and
natural re ource sectors
ill become a ailable to local re idents or ex-patriots i
not possible to predict on any factual basis.
D.W. Knight Associates
.. . . page 15
Red Bay Municipal Plan 2010 - 2020
o For the purposes of this Municipal Plan, we assume the following:
✓ A current population of approximately 230, accommodated in 75
households, and
✓ Net growth of 25% over the next IO years.
o This would result in future populations of 257 by 2015 and 288 by the end of the
Planning Period in 2020.
o Based on this population projection, and if household size decreases to 3.0 during
this same period, a total of 21 new dwelling units could be required in the
community by 2020.
Land Use Needs
Based on the analysis undertaken by the Planning Tean1, the Municipal Plan should
reflect the following land use needs:
o Population Growth of over 25%, rising to 288 people by 2020.
o Housing
- 21 new dwelling units by 2020,
- innovative housing designs that will meet the lifestyle needs of residents and
make efficient use of available land should be considered.
o Commercial/Institutional
- Limited land will be required to accommodate Commercial and Institutional
uses during the Planning Period. We are assuming that this could be
accommodated in infill properties on the main road or on the waterfront.
Heritage Preservation and Tourism Development
o
Supporting the Red Bay UNESCO World Heritage Site initiative both during and
following the nomination process should be a central focus of the Municipal Plan.
o
The Town of Red Bay should pursue a Heritage designation for buildings,
structures or sites under Section 200 of The Municipalities Act, 2000.
Red Bay Municipal Plan 2010- 2020
o A heritage hiking trail should be pursued around the Strand and extending to
Steamer Cove (however, as this area is included in the proposed World Heritage
Site, development has to be minimal, excluding for example a board walk).
o Attention should be paid to the improvement of small open spaces, planting and
signage, particularly in the "traditional" community. This should be applied
especially to public buildings and spaces, in keeping with heritage preservation
principles.
Government Funding Agencies
o Public sector funding is currently provided by ( or channelled into Red Bay
through) several provincial and federal departments and agencies of government,
including Municipal Affairs, Works, Services and Transportation, Environment,
Human Resources Development and Parks Canada.
o Red Bay's economic and social development needs will be best served when there
is:
- effective co-ordination between these departments and agencies,
- multi-year programming, and
- priority given to up-front research, planning and engineering years in
advance of implementation and construction.
D.W. Knight Associates
. . . . page 17
Red Bay Municipal Plan 2010 - 2020
2. Municipal Plan
Thjs Munjcipal Plan seeks to meet the needs of the people of Red Bay during the 2010-
2020 Planning Period. A second overall priority is to achieve a balance of heritage
preservation and commuruty development as the Town prepares to achieve UNESCO
World Heritage Site status. The proposed World Heritage boundary and buffer zone
were outlined earlier in this document. It is the responsibility of the community to ensure
the long term preservation and protection of this area.
The Plan is divided into three sections:
2.1 Objectives,
2.2 Land Use Policies, and
2.3 Plan Implementation.
2.1 Objectives
This section outlines the objectives that will be addressed by Council during the 2010 -
2020 Planning Period.
Economy
o To pursue all avenues to stimulate development of the local economy in
partnership with public sector agencies such as Parks Canada, Labrador Straits
Historical Development Corporation and the Labrador Straits Development
Corporation.
o To encourage further development of young entrepreneurs in Red Bay through
initiatives such as awareness-raising and mentoring.
o To support the development of viable, long term business and employment
opporturuties in the local economy, including the fishery, tourism and public
service. Council's support will include making every effort to match new
development opporturuties with the required murucipal services.
o To support the further development of facilities and attractions that will grow the
tourism industry in Red Bay such as the designation of historic buildings and
community beautification programs.
o To support proposals for the adaptive-re-use of heritage buildings as a means of
promoting conservation and economic development.
D.W. Knight Associates
. ... page 18
Red Bay Municipal Plan 201 0 - 2020
Heritage Preservation
o To fully support the nomination of Red Bay as a UNESCO World Heritage Site.
o To support the preservation of Red Bay's heritage for residents as well as visitors.
o To support heritage preservation and presentation projects such as development of
hiking trails, the erecti.on of plaques and storyboards interpreting local heritage
and the collection and recording of stories about Red Bay.
o To encourage the designation of all archaeological sites and sites of histo r.ic
significance in all land use designations identified by this plan.
Community Growth
o
To plan for over 25% increase in the current population by 2020 (increasing from
the current 230 to 288 in 2020).
o To continue to ensure that Red Bay expands with the most economical use of land
and municipal services.
o To encourage less intensive uses (such as warehousing) to locate in areas not
serviced by municipal water and sewerage.
Housing
o To plan for a minimum of 21 new dwelling units by 2020.
o To establish residential lot sizes that meet the minimum safety and servicing
requirements of Council and the lifestyle requirements of residents.
o To investigate innovative housing designs that increase the economical use of
land and municipal services and serve the varying (functional and aesthetic) needs
and interests of the population; eg, singles, extended families and seniors.
Recreation and Community Services
o To support the sports and recreation needs of all age groups within the community
through various initiatives, including:
- skidoo trail enhancement,
- playground enhancement,
- activities around the creative arts and craft making,
D.W. Knight Associates
.... page 19
Red Bay Municipal Plan 2010 - 2020
- hosting of sporting events,
- open space development aimed at improving the aesthetic appearance and
living environment, particularly around public buildings,
o To ensure that public services are available to meet the health and personal
service needs of residents.
Environment
o To oversee the wise management of the natural resources of the community,
including the requirement that undertakings having significant environmental
effect be registered under the Environmental Protection Act.
o To ensure that contamination of sites by oil and other substances, is remediated on
an urgent basis.
o To require regular water quality testing of the municipal water supply.
Municipal Services
o To prepare and implement a Capital Works Plan, in conformity with this
Municipal Plan.
o To continue with expansion/improvements to the Town's sewerage, roads and
municipal buildings.
o To continue to supply high quality household water to Red Bay residents.
o To continue to provide and upgrade drainage ditches for flood prevention and
erosion control.
Municipal Administration
o To administer the Municipality of Red Bay within the framework laid out in the
Municipalities Act, 2000, including Part III of the Act, Administration and Staff.
o
To pur ue training and upgrading opportunities for municipal staff and ensure that
all municipal employees are serving the town with a maximum level of
productivity. This will take different forms, including:
- Video-conferencing through the facilities of Smart Labrador, and
D.W. Kniaht Associates
-... page 20
Red Bay Municipal Plan 2010 - 2020
- Individual training requests to the Department of Municipal and Provincial
Affairs.
2.2 Land Use Policies
Land Use Designations have been developed to express the land use policies of ouncil
for the 2010 - 2020 Planning Period. They are: Mixed Development, Commercial,
Heritage Preservation, Watershed Protection and Rural and Resource. The policies that
follow and the accompanying Future Land Use Maps constitute the land use component
of the Red Bay Municipal Plan 20 IO - 2020. Please refer as well to the previous
section, Objectives, to understand the full scope of Council's priorities.
2.2. l Mixed Development
i) General Intent
The intent of this designation is to continue the traditional mix of residential, public and
commercial uses that have always co-existed in Red Bay. It includes most of the
traditional community, banded around the shoreline.
ii) Uses
U es permitted in this designation include residential. Uses that may be permitted
include public (religious, educational, medical recreational and professional), community
commercial/light industrial uses related to the fishery, general retail and tourism, offices
and home-based bu iness. These uses may be permitted, provided there are no concerns
re heritage preservation, public safety and amenity.
iii) Commercial/Light Industrial
Small-scale light industrial uses such as repair, manufacturing and traditional uses related
to the fishery may be permitted, providing they are not a hazard or nuisance to other uses.
iv) Public Service
Uses such as recreation, education, religious, health and other services designed for the
public good may be permitted in Mixed Development areas. The continuation of
community gardening will be encouraged.
v) Heritage Preservation
Council will a ign high priority to the pre ervation of tructures and sites that
demonstrate and represent the cultural and natural heritage of Red Bay and its people,
including aboriginal sites.
D.W. Knight Associates
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Red Bay Municipal Plan 2010 - 2020
ii) Uses
Development shall be limited to that which promotes conservation of natural and cultural
resources. Trail development may be permitted in the area in ways that are sympathetic
to the preservation of natural and cultural heritage. Uses related to the fishery or marine
transportation (e.g., slipways, wharves or storage buildings) may be permitted provided
proper site evaluation is carried out with respect to historic resources and engineering
requirements.
iii) Natural Constraints
Development shall not be permitted in areas that are susceptible to flooding, have
excessive slope or other environmental hazards.
iv) Approval required
Approval of the Provincial Archaeology Office is required prior to any development
being permitted either through the Council or Crown Lands Division. This will apply to all
applications for development, including building permits, land severance and
subdivisions.
2.2.4 Watershed Protection
i) General Intent
The intent of this designation is to prevent any development or extraction activity that
would affect the quality of the municipal water supply.
ii) Uses
No development shall be permitted except those aimed at environmental conservation
and passive recreation (such as hiking and canoeing). Public utility uses may be
permitted subject to criteria ( e.g., that it doesn't cause pollution, erosion or other major
alteration).
iii) Protection Measures
All development proposals shall be required to show plans for grading, ditching and
landscaping. Environmental monitoring and remediation shall be carried out where
required.
iv) Buffering Adjacent to Water Bodies
An environmental buffer a minimum width of 15 metres ( 49 feet) shall be preserved
along the high water mark of all bodies of water, including rivers, streams ponds and
wetland . An de elopment ithin the
ater or
ithin the de ignated buffer area must
be approved under Section 48 of the Water Resources Act prior to the start of
construction.
Red Bay Municipal Plan 2010 - 2020
2.2.5 Rural and Resource
i) General Intent
The balance of land within the Red Bay Planning Area, on Future Land Use Maps I and
2 is designated Rural and Resource. The intent is that the traditional use of these lands
for subsistence, recreation, public utility and other purposes will be continued. Further,
this designation is to ensure the environmental protection of sensitive and hazardous
lands, including those subject to flooding.
ii) Uses
Rural and Resource lands shall generally be retained in their natural state. Development
shall be limited to environmental conservation, passive recreation (such as hiking and
canoeing) and traditional, resource-based activities such as home gardening or
commercial fur farming. Public utility uses may be permitted subject to criteria ( eg, that
it doesn't cause pollution, erosion or other major alteration). Council will evaluate each
development proposal to determine impacts on the natural environment and Red Bay's
cultural heritage. Development proposals will be circulated to the Provincial
Archaeology Office for their recommendations.
iii) Mining
When issuing a permit for any mining operation, Council may attach such conditions as,
in its opinion, are necessary. These could relate to, for example,
noise, dust and pollution control, and
site rehabilitation.
Existing quarry sites are to be exhausted before new sites are developed.
Mineral exploration may be permitted in the Planning Area if agreeable to Council, with
the understanding that any mineral development would be subject to comprehensive
environmental impact assessment.
iv) Solid Waste Disposal
A buffer of not less than 1.6 km (I mile) will be maintained around the solid waste
disposal site to protect against smell, rodents and other adverse environmental effects.
Within the buffer zone, residential use may be permitted through infilling/rounding out of
existing development and as otherwise allowed in this Plan, except where it further
encroaches on the waste disposal site.
2.2.6 General Policies
i) Steep Slopes
Any proposal to develop a structure on a site with slopes in excess of I 5% is to be
certified by a Professional Engineer.
D.W. Knight Associates
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Red Bay Municipal Plan 2010 - 2020
ii) Roads
Municipal roads are to be maintained in an acceptable condition to maximize safety and
convenience for the public.
iii) Property Maintenance
The exteriors of buildings are to be finished and maintained to the satisfaction of Council;
owners of dilapidated structures shall be required to repair or remove them if they present
a safety hazard.
Wrecked or inoperable vehicles, machinery or equipment of any kind shall not be stored
or abandoned where they may be in general public view.
iv) Development Near Waterbodies
Development will not be permitted within 15 metres ( 49 feet) of the seashore or any
watercourse or waterbody within the planning area except for the following, and then
only with approval from the Departments of Environment and Conservation and Fisheries
and Oceans:
-
wharves, slipways and sheds along the coast to allow for marine operations, and
-
public works and utilities.
v) Non-Conforming Uses
Existing development which does not conform with the requirements of this Municipal
Plan and Development Regulations may be continued as a non-conforming use. Where a
non-conforming use is causing a nuisance or otherwise infringing on other development,
Council will encourage its relocation or discontinuance.
vi) Mineral Exploration
Mineral exploration may be permitted in the Planning Area, with the requirement that any
proposed mineral development be subject to comprehensive environmental assessment.
vii) Heritage Preservation
Council will assign high priority to the preservation of structures and sites that
demonstrate and represent the cultural and natural heritage of Red Bay and its people,
including aboriginal sites. The designation of heritage structures will be pursued under
provision 248 of the Municipalities Act:
The council may, by regulation, designate real property as heritage
buildings, structures or lands.
rn Archaeological Sites
Council recognizes the high potential for new archaeological sites to be located within
the Planning Area and will make it a priority to have close consultation with the
Provincial Archaeology Office and Parks Canada. Approval of the Provincial
Archaeology Office is required prior to any development being permitted either through
the Council or Crown Lands Division.
D.W. Knight Associates
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Red Bay Municipal Plan 2010 - 2020
ix) Off-Street Parking
In the planning of sites for new development or re-development, consideration will be
given to preserving adequate space for off-street parking of motorized vehicles. A guide
to the consideration of off-street parking shall be included in the Development
Regulations.
2.3 Municipal Plan Implementation
The adoption of this Municipal Plan represents only the start of the 2010 - 2020 planning
process. The Plan will be implemented over the next ten years through ongoing review
and decisions of Council and, in co-operation with Council and bodies such as Parks
Canada and the Labrador Straits l listorical Development Corporation. Of particular
importance to Council are the following:
2.3. l Municipal Plan Conformity
All development within the Planning Arca shall conform to this Municipal Plan.
Should amendments to the Municipal Plan be necessary during the Planning Period, they
shall be prepared according to the Urban and Regional Planning Act, Sections 16 - 30.
2.3.2 Development Regulations
Once this Plan is adopted, Council will adopt Land Use Zoning, Subdivision and
Advertisement Regulations (or Development Regulations) pursuant to Section 35 of the
Urban and Rural Planning Act 2000 which states in part:
A council shall, lo ensure that land is controlled and used only in accordance with the
Municipal Plan, make development regulations respecting:
land use zoning,
the requirements/or residential lots, and
-
the development of and requirements/or subdivisions.
Permitted and Discretionary Uses
Each of the Use Zones laid out in Schedule 'C' of the Development Regulations will lay
out Permitted and Discretionary Uses. The issuing of permits for permjned u es is
usually straight forward, subject to the requirements set out in the Regulations and any
further conditions imposed by Council.
Discretionary uses arc those that may be allowed in a zone if:
O.W. Kniaht Associates
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Red Bay Municipal Plan 2010 - 2020
- The development is not contrary to the general intent and purpose of this
Municipal Plan, the Red Bay Development Regulations, or any other regulations,
- Proper public notice has been given and Council is satisfied that it is not against
the public interest and will fit into the zone as a complementary or non-damaging
use, and
- Council is satisfied that the discretionary use is suitably located within the zone
proposed.
Control of Development
Council will exercise control over all development within the Planning Arca in
accordance with this Municipal Plan and the Development Regulations.
Any person wishing to develop or subdivide land for any purpose within the Red Bay
Planning Arca shall make application for permission to Council. All new development or
redevelopment as well as any change of use or alterati.on or improvement to any land or
existing building will require a permit from Council. A separate permit will be required
for all building work and the occupancy of a building. A building permit will not be
granted until a development and/or subdivision permit has been obtained.
2.3.3 Capital Works
Annual public works will be carried out by Council according to its Capital Works Plan,
in conformity with the Municipal Plan.
It is the policy of Council to carry out multi-year programming, with pre-planning and
engineering carried out years in advance of construction.
2.3.4 Subdivision Development
Subdivision development will be carried out according to comprehensive analyses and
conformity with planning and engineering standards as laid out in the Red Bay
Development Regulations and elsewhere.
D.W. Knight Associates
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