Salvage, Newfoundland and Labrador
· adopted 2022-01-24
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Town of Salvage
Municipal Plan 2021-2031
Prepared for
Prepared by
The Town of Salvage
Baird Planning Associates
Town of Salvage
Municipal Plan 2021-2031
Prepared for the Town of Salvage
by
Baird Planning Associates
I
Urban and Rural Planning Act 2000
Resolution to Adopt
Town of Salvage Municipal Plan, 2021 - 2031
Under the authority of Section 16 of the Urban and Rural Planning Act 2000, the Town
Council of Salvage adopts the Salvage Municipal Plan.
Adopted by the Town Council of Salvage on the 24th day of January 2022.
Signed and sealed this / (I day of ~
2022
/)
Mayor:
Clerk:
Canadian Institute of Planners Certification
(Council Seal)
I certify that the attached Municipal Plan has been prepared in accordance with the
requirements of the Urban and Rural Planning Act 2000.
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Urban and Rural Planning Act 2000
Resolution to Approve
Town of Salvage Municipal Plan, 2021 - 2031
Under the authority of Section 16, Section 17, and Section 18 of the Urban and Rural
Planning Act 2000, the Town Council of Salvage
(a) Adopted the Salvage Municipal Plan on the 24th day of January 2022.
(b) Gave notice of the adoption of the Salvage Municipal Plan by advertisement:
Posted a notice at the Town Hall
Posted as a flyer to all mailboxes in Salvage
Posted by mail individually to seasonal residents
(c) Set the 4th day of April 2022 at the Town Hall, Salvage for receipt of objections and other
representations for consideration by the Public Hearing Commissioner.
Now under the authority of Section 23 of the Urban and Rural Planning Act 2000, the Town
Council of Salvage approves the Salvage Municipal Plan.
SIGNED AND SEALED this / {/ day of~
2022.
/_
- /J
Mayor:
(Council Seal)
Clerk:
Municipal Plan
REGISTERED
Number '---"\ ~~
0 - --;;;cr;;s7:;> -ex::£:)
Date
2-2- S ·V t)( 1-<}Z-1--
Signature }9~41 (',.~
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Table of Contents
1.0
INTRODUCTION ............................................................................................................... 1
1.1
Purpose of the Municipal Plan ................................................................................................. 1
1.2
Plan Preparation ...................................................................................................................... 1
1.3
Contents of the Municipal Plan ................................................................................................ 1
1.4
Municipal Plan Administration ................................................................................................. 1
1.5
Interpretation .......................................................................................................................... 2
2.0
BACKGROUND REPORT ................................................................................................ 3
2.1
Geographical Setting ................................................................................................................ 3
2.2
Population ............................................................................................................................... 4
2.3
Age Structure ........................................................................................................................... 6
2.4
Households and Housing .......................................................................................................... 7
2.5
Public Consultations ................................................................................................................ 9
2.5.1
First Open House - March 4, 2020 ................................................................................................... 9
2.5.2
Cult ural Mapping Workshop (Heritage NL) - November 2-3, 2020 ................................................ 10
2.5.3
Second Open House -April 27, 2021 ............................................................................................. 11
3.0
GOALS AND OBJECTIVES ........................................................................................... 12
3.1
Community Structure and Character ...................................................................................... 12
3.2
Economic Growth and Development ...................................................................................... 12
3.3
Heritage Protection and Enhancement .................................................................................. 13
3.4
Environment .......................................................................................................................... 13
3.5
Health and Social Well-Being ................................................................................................. 13
3.6
Housing ................................................................................................................................. 14
3.7
Transportation ....................................................................................................................... 14
3.8
Open Space and Recreation ................................................................................................... 14
3.9
Capital Works ........................................................................................................................ 14
3.10
Governance ........................................................................................................................... 15
3.11
Municipal Finance .................................................................................................................. 15
4.0
COMMUNITY WIDE POLICIES ...................................................................................... 16
4.1
Policy Framework .................................................................................................................. 16
4.2
General Land Use Policies ...................................................................................................... 16
4.2.1
General Layout of the Town ........................................................................................................... 16
4.2.2
Compatibility of Uses ...................................................................................................................... 17
4.2.3
Non-Conforming Uses ..................................................................................................................... 17
4.2.4
Land Development Proposals ......................................................................................................... 17
4.2.5
Consolidation and Infill of Serviced Areas ...................................................................................... 18
4.2.6
4.2.7
4.2.8
4.2.9
4.2.10
4.2.11
4.2.12
4.2.13
Adaptive Re-use of Existing Buildings and Properties .................................................................... 18
Permitted, Discretionary and Prohibited Uses ............................................................................... 18
Mineral Exploration ........................................................................................................................ 19
Mineral Working ............................................................................................................................. 19
Forest Resources and Trees ............................................................................................................ 19
Utilities ............................................................................................................................................ 20
Archaeological Resources ............................................................................................................... 20
Provision for the Disabled and Elderly ............................................................................................ 20
4.3
Heritage Policies .................................................................................................................... 20
4.3.1
Heritage Values ............................................................................................................................... 21
4.3.2
Heritage Protection and Enhancement .......................................................................................... 23
4.3.3
Designated Heritage Properties ...................................................................................................... 23
4.3.4
Stages and Stores ............................................................................................................................ 23
4.3.S
Adaptive Re-use of Stages and Historic Homes .............................................................................. 24
4.3.6
Use of Discretionary Authority ....................................................................................................... 24
4.4
Environmental Policies ........................................................................................................... 24
4.4.1
General Environment ...................................................................................................................... 24
4.4.2
Soils and Drainage .......................................................................................................................... 25
4.4.3
Watercourse and Wetland Protection ............................................................................................ 25
4.4.4
Freshwater and Coastal Shorelines ................................................................................................. 25
4.4.5
Steep and Unstable Slopes ............................................................................................................. 25
4.4.6
Storm Drainage ............................................................................................................................... 25
4.4.7
Excavation and Infilling in Shorefront Areas ................................................................................... 25
4.4.8
Use of Discretionary Authority ....................................................................................................... 25
4.5
Infrastructure Policies ............................................................................................................ 26
4.5.1
Water Supply System ...................................................................................................................... 26
4.5.2
Stormwater Management .............................................................................................................. 26
4.S.3
Water Servicing Requirements for New Development ................................................................... 26
4.6
Transportation Policies .......................................................................................................... 26
4.6.1
Consideration of Environmental Impacts ....................................................................................... 26
4.6.2
Street Design and Construction ...................................................................................................... 26
4.6.3
Provision for the Disabled and Elderly ............................................................................................ 26
5.0
LAND USE DESIGNATIONS ......................................................................................... 27
5.1
Open Space-Conservation ...................................................................................................... 27
5.1.1
General Intent ................................................................................................................................. 27
5.1.2
Open Space-Conservation Zone ...................................................................................................... 27
5.2
Protected Water Supply Area ................................................................................................ 27
5.2.1
General Intent ................................................................................................................................. 27
5.2.2
Protected Water Supply Area Zone ................................................................................................ 27
5.3
Coastal ................................................................................................................................... 28
5.3.1
General Intent ................................................................................................................................. 28
5.3.2
Coastal Zone ................................................................................................................................... 28
5.4
Residential ............................................................................................................................ 29
5.4.1
General Intent ................................................................................................................................. 29
5.4.2
Residential Zone ............................................................................................................................. 29
5.5
Harbourside ........................................................................................................................... 29
5.5.1
General Intent ................................................................................................................................. 29
5.5.2
Compatibility of Uses ...................................................................................................................... 30
5.5.3
Use of Discretionary Authority ....................................................................................................... 31
5.5.4
Harbourside Zone ........................................................................................................................... 31
5.6
Rural ...................................................................................................................................... 32
5.6.1
General Intent ................................................................................................................................. 32
5.6.2
Rural Zone ....................................................................................................................................... 32
6.0
IMPLEMENTATION ........................................................................................................ 34
6.1
Administration of the Plan ..................................................................................................... 34
6.1.1
Map Interpretation ......................................................................................................................... 34
6.1.2
Development Applications .............................................................................................................. 34
6.1.3
Subdivision Proposals and Agreements .......................................................................................... 35
6.2
Public Participation ................................................................................................................ 35
6.3
Development Regulations ...................................................................................................... 35
6.3.1
Council Responsibility ..................................................................................................................... 36
6.3.2
Content ........................................................................................................................................... 36
6.4
Development Control ............................................................................................................. 36
6.4.1
Municipal Plan is Binding ................................................................................................................ 36
6.4.2
Council Responsibility ..................................................................................................................... 36
6.4.3
Right to Appeal ............................................................................................................................... 36
6.4.4
Provincial and Federal Referrals ..................................................................................................... 36
6.5
Amending the Municipal Plan and Development Regulations ................................................ 36
6.5.1
Municipal Plan Amendment ........................................................................................................... 37
6.5.2
Stand-Alone Development Regulations Amendment.. ................................................................... 37
Salvage Municipal Plan, 2021-2031
1.0 INTRODUCTION
1. 1
Purpose of the Municipal Plan
The Salvage Municipal Plan is a comprehensive policy document to manage development and
growth within the Salvage municipal planning area over the ten-year planning period 2021-31.
This document has been prepared in compliance with the Urban and Rural Planning Act 2000,
(also referred to as the Act).
The Plan was drafted following consultations with Council, residents, and appropriate government
agencies. Relevant planning issues have been reviewed as required under the Act, including a
study of land use, population change, economic and social issues, transportation, municipal
services, and environmental issues.
1.2
Plan Preparation
This Municipal Plan reflects the review of land use, environmental, demographic, social, and
economic issues, consultations with Town Councillors and staff, and public comments received
through the community participation process.
The Plan guides future growth and physical improvement of the Town by identifying locations and
policies for various types of land use development. The Municipal Plan provides the basis for the
Land Use, Zoning, and Subdivision Regulations (generally referred to as the Development
Regulations), which Council will administer through subdivision approvals and development
permits. The Municipal Plan authorizes Council to prevent the undertaking of any development
that contravenes a policy stated in the Municipal Plan.
1.3
Contents of the Municipal Plan
The Municipal Plan, comprising this document and the accompanying Future Land Use Maps,
constitutes a legal document pursuant to the Urban and Rural Planning Act 2000. It contains:
-
The aims of Council (goals and objectives).
-
Land use policies for future development.
-
Future Land ·use maps, which allocate land for future development, environmental
protection, and natural resource uses.
The Background Report in Section 2.0 describes conditions in the Town at the time the Municipal
Plan was prepared and summarizes input received in the public consultations. The Background
Report does not form part of the legal document.
1.4
Municipal Plan Administration
After Ministerial approval of the Salvage Municipal Plan was published in the Newfoundland and
Labrador Gazette, the Plan became binding upon Council and all other persons, corporations,
and organizations.
Council administers the Municipal Plan by carrying out the Plan's
policies. This is done in several ways:
-
By preparing and implementing the Development Regulations,
-
By issuing development permits to applicants wishing to subdivide land, erect or
architecturally alter a building or structure, or change the use of a building or land, or
Baird Planning Associates
Pagel
Salvage Municipal Plan, 2021-2031
conversely, refusing to issue permits for developments that are not in accordance with the
Plan,
-
By issuing demolition permits to applicants wishing to remove buildings or structures, or
conversely, refusing to issue permits for demolitions that are not in accordance with the
Plan,
-
By adopting or approving development schemes, concept plans, comprehensive plans,
and so forth.
In accordance with Section 25 of the Act, Council may make amendments to this Plan and
Development Regulations at any time. Amendments will be brought into effect by the same
process used to bring the Municipal Plan into effect. Sections 14 to 25 apply to an amendment
to the plan and development regulations.
1.5
Interpretation
In this Municipal Plan:
-
"Council" means the Council of the Town of Salvage.
-
"Development Regulations" mean the Salvage Land Use Zoning and Subdivision
Regulations.
-
"Municipal Planning Area" means the Salvage Municipal Planning Area.
-
'Town" means the Town of Salvage.
Baird Planning Associates
Page 2
Salvage Municipal Plan, 2021-2031
2.0 BACKGROUND REPORT
2. 1
Geographical Setting
As shown in Exhibits 2.1 and 2.2 the Town of Salvage is located in central Bonavista Bay at the
northern tip of the Eastport Peninsula. The Town's municipal area takes in approximately 16
square kilometres with a coastline of about 30 kilometres. Access to the Town is provided by
Route 310, otherwise known as the Glovertown-Salvage Highway. By road it lies approximately
10 kilometres northeast of the Town of Eastport and 26 kilometres from the Trans Canada
Highway. The Town's planning area borders the Town of Eastport for approximately one-third of
a kilometres and the Town of Sandy Cover for approximately 4 kilometres.
Exhibit 2.2 shows the Salvage municipal area relative to the other towns on the Eastport
Peninsula. It directly borders the municipal areas of the Towns of Sandy Cove and Eastport to
the south. Other communities in the region include the Towns of Happy Adventure and
Sandringham and the unincorporated communities of St. Chads and Burnside. The boundary with
Sandy Cove has a distance of approximately 4.0 kilometres while the boundary with Eastport is
approximately half of a kilometre.
The Town's main built-up area abuts the shoreline of two harbours on its northern coastline -
Salvage Harbour and Bishop's Harbour. The much larger undeveloped areas lie mainly south of
the built-up town.
Baird Planning Associates
Exhibit 2.1 Regional Setting
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Salvage Municipal Plan, 2021-2031
Exhibit 2.2 - Salvage on the Eastport Peninsula
2.2
Population
Exhibits 2.3, 2.4 and 2.5 compare the change in Salvage's population from 1991 to 2016 with
Census Division No. 7, of which Salvage is a part, and the province as a whole. Census Division
No. 7 covers the area from the Bonavista Peninsula and Random Island west to Cape Freels in
Bonavista North. Over the 20-year period Salvage's permanent population declined from 240 to
124 residents, a drop of 48.3%. In comparison, the population of Census Division 7 dropped by
17 .9% over the period while the province's dropped by 5.8%.
Exhibit 2.3 - Population
(Source: Census Profiles)
Salvage
Census
NL
Division 7
1996
240
41 ,534
551,792
2001
203
37,335
512,980
2006
174
35,501
505,470
2011
136
34,686
514,536
2016
124
34,092
519,716
Baird Planning Associates
Page 4
Salvage Municipal Plan, 2021-2031
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-5.0%
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~ -10.0%
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cu
c. -20.0%
-25.0%
1991
Exhibit 2.4 - 5-Year Population Chanae
Salvage
Census
NL
Division 7
1996-01
-37
-15.4%
-10.1%
-7.0%
2001-06
-29
-14.3%
-4.9%
-1 .5%
2006-11
-38-
-21.8%
-2.3%
1.8%
2011-16
-1 2
-8.8%
-1.7%
1.0%
20-Year Change
-11 6
-48.3%
-17.9%
-5.8%
Exhibit 2.5
Population Change by by Census Period
Salvage & Benchmarks
1996
2001
2006
-
salvage -
census Div. 7
NL
2011
2016
A town's population changes as a result of natural change (i.e., births minus deaths) plus net
migration into or out of the community. Exhibit 2.6 shows the components of Salvage's population
change in the years 2009-2014. Of the total decline of 20 residents in that period, fifteen were
due to natural change and the other five were a result of net migration. The net out-migration of -
3.1 % compares to a net-in-migration of 2. 7% for the province as a whole over the same period.
Exhibit 2.6 - Components of Population Change
(Source: Community Accounts - Tax Filer Indicators)
Salvage
NL
Year
Year
Births
Deaths
Natural
Net Migration
Net
Start
End
Change
Number
Percent
Migration
2009
160
150
0
0
0
-1 0
-6.3%
0.4%
201 0
150
150
0
5
-5
+5
+3.3%
0.1%
201 1
150
150
0
0
0
0
0.0%
0.5%
201 2
150
140
0
5
-5
-5
-3.3%
0.2%
201 3
140
130
0
5
-5
-5
-3.6%
0.4%
2014
130
140
Q
Q
Q
+10
+7.7%
0.4%
Total
0
15
-15
-5
-3.1%
2.7%
Baird Planning Associates
Page 5
Salvage Municipal Plan, 2021-2031
2.3
Age Structure
Exhibit 2.7 profiles the median age of Salvage's population in each Census period from 2001 to
2016 and draws a comparison with the surrounding Census region, the province, and the country
as a whole. As with all the benchmarks, Salvage's population is getting older. This is happening
at a significantly faster rate than each of the benchmarks. Over the 15 years, Salvage's median
age increased by a margin of 15.5 years (from 42.3 in 2001 to 57.8 in 2016). This compared to a
margin of 10.3 years in the Census region, 7.6 years in the province, and 3.6 years in Canada.
As of 2016 Salvage's median age was 6.7 years older than the region, 11.8 years older than the
province, and 16.6 years older than the country as a whole.
Exhibit 2.7 - Median Age, Salvage &
Benchmarks
(Source: Census Profiles)
Median Age of Population
Salvage
Census
NL
Canada
Div. 7
2001
42.3
40.8
38.4
37.6
2006
47.8
45.1
41.7
39.5
2011
51.3
50.9
44.0
40.6
2016
57.8
51 .1
46.0
41 .2
Exhibits 2.8 and 2.9 illustrate changes in Salvage's age structure from 1991 to 2016. While overall
the population decreased by 130 residents or 50.0%, there was wide variation by age group with
the biggest decline overwhelmingly experienced among the younger age groups falling. The 0-19
age group dropped from 70 in 1991 to 20 by 2016, a decline of 71.4%. The 20-44 age group
dropped from 85 in 1991 to 15 by 2016, a decline of 82.4%. The 45-64 age group stayed the
same at 60 in 2016 as it was in 1991, while the 65+ age group dropping from 45 to 35 residents,
a decline of 22.2%.
Exhibit 2.9 illustrates how each age group has changed proportionately over the 25-year period.
The 0-19 group declined from 26.9% of the total in 1991 to 15.4% in 2016 while the 20-44 group
declined from 32. 7% to 11 .5%. In contrast the 45-64 group climbed from 23.1 % in 1991 to
46.2% in 2016 while the 65+ group climbed from 17.3% to 26.9%.
Exhibit 2.8 - Salvage Age Distribution, 1991-2016
(Source: Census Profiles & NL Community Accounts)
Age
1991
1996
2001
2006
2011
2016
Group
0-19
70
65
40
25
25
20
26.9%
27.7%
19.5%
19.4%
17.9%
15.4%
20-44
85
80
75
55
25
15
32.7%
34.0%
36.6%
28.4%
17.9%
11 .5%
45-64
60
55
55
65
50
60
23.1%
23.4%
26.8%
34.3%
35.7%
46.2%
65+
45
35
35
35
40
35
17.3%
14.9%
17.1%
17.9%
28.6%
26.9%
Total
260
235
205
180
140
130
100.0% 100.0%
100.0%
100.0% 100.0% 100.0%
Baird Planning Associates
Page6
Salvage Municipal Plan, 2021-2031
50.0%
45.0%
40.0%
35.0%
30.0%
25.0%
20.0%
15.0%
10.0%
5.0%
0.0%
Exhibit 2.9
Population Breakdown by Major Age Groups
1991-2016
1991
1996
2001
2006
2011
-
0-19 -
20-44
45-64 -
65+
2.4
Households and Housing
2016
Exhibit 2.1 0 compares household and housing characteristics in Salvage with the surrounding
census region and the province as a whole. Between 1996 and 2016 the number of households
in Salvage declined by 26.7% while the average number of residents per household dropped from
2.82 to 2.25. In 2016 Salvage's average household size of 2.25 residents compared to 2.3 in both
the region and the province.
Exhibit 2.10 - Household Characteristics
(Community Accounts - Housinq)
Salvage
Census Div. 7
NL
All Private Households 2001-16
1996
85
13,950
185,500
2001
75
13,815
189,045
2006
70
14,010
197,185
2011
55
14,290
208,842
201 6
55
14,571
21 8,675
Change 2001-16
-26.7%
+5.5%
+15.7%
Persons per Household (Census Profiles)
1996
2.82
3.0
3.0
2001
2.71
2.7
2.7
2006
2.49
2.5
2.6
2011
2.47
2.4
2.4
2016
2.25
2.3
2.3
Baird Planning Associates
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Salvage Municipal Plan, 2021-2031
Exhibit 2.11 compares Salvage's occupied housing stock with the other benchmark areas.
Occupied housing includes all dwellings that are permanently occupied and excludes dwellings
that are not occupied on a full-time basis.
Salvage's occupied housing stock is made up exclusively single detached dwellings, compared
to 90.6% in Census Division 7 and 73.4% in the province as a whole.
Exhibit 2.11 - Occupied Dwelling Types,
2016
(Source: 2016 Census Profile
Salvage
Div. No. 7
NL
Detached house
55
100.0%
90.6%
73.3%
Apartments
0
0.0%
5.5%
17.2%
Other
0
0.0%
3.9%
9.5%
Total
55
100.0%
100.0%
100.0%
Exhibit 2.12 provides data on the age and condition of occupied housing in Salvage compared to
the benchmarks. In 2016 the Town's entire housing stock exceeded 25 years in age compared to
72.3% in the surrounding region and 68.0% in the province as a whole. It also shows that housing
conditions in the Town are better than the regional and provincial benchmarks with no houses
requiring major repairs whereas major repairs were required by 7.0% of dwellings in the region
and 7.4% in the province.
Exhibit 2.12
Age & Condition of Occupied Dwellings
(Source: 2016 Census Profile)
Period of Construction
Salvage
Div. No. 7
NL
Before 1961
44.4%
22.6%
19.8%
1961-1980
33.3%
31.3%
32.6%
1981-1990
22.2%
18.4%
15.6%
1991-2000
0.0%
11.2%
11.6%
2001-2010
0.0%
9.8%
13.0%
2011-2016
0.0%
6.7%
7.4%
100.0%
100.0%
100.0%
Condition of Dwellings
Needs regular
100.0%
93.0%
93.5%
maintenance
Needs major repairs
0.0%
7.0%
6.5%
The 5-year Census distinguishes between a community's total private dwellings and its occupied
private dwellings. Whereas occupied dwellings are defined as those in which one or more
persons are permanently residing, unoccupied dwellings may include those in which nobody
resides or in which the residents are temporary. In the case of Salvage, many of its homes are
now used as seasonal dwellings by people whose permanent residence lies elsewhere.
Baird Planning Associates
Page 8
Salvage Municipal Plan, 2021-2031
Exhibit 2.13 shows the change in total dwellings and occupied dwellings between 2001 and 2016.
While the total number of ·dwellings increased by four over the period, the number of occupied
dwellings decreased by 17. The table calculates the number of unoccupied dwellings as the
difference between total dwellings and occupied dwellings as identified in the Salvage Census
Profiles. Unoccupied dwellings over the period increased from 25 or 25.0% of the total in 2001 to
46 or 46.2% in 2016.
Exhibit 2.13 - Occupied and Unoccupied
Dwellings
Derived from Census Profiles)
Total
Occupied
Unoccupied
Dwelllnas
Dwellings
Dwellinas
2001
100
75 (75.0%)
25 (25.0%)
2006
99
71 (71.7%
28 (28.3%)
2011
103
57 (55.3%
46 (46.7%)
2016
104
58 (55.8%)
46 (46.2%)
2.5
Public Consultations
2.5.1 First Open House - March 4, 2020
The first public consultation session for the Plan Review took place on March 4, 2020, at the
_Salvage Town Hall. The session included an Open House from 2:30 to 5:00 PM and again from
6:30 to 8:30 PM. It was attended by 14 residents as well as three Council representatives.
The following planning issues and/or opinions were raised during the session included the
following:
-
Need to protect the Salvage trails from any incompatible development or activities. The
Salvage trails are an integral component in the Damnable hiking trail network and an
important tourism asset for the Town and region. The trails should be shown on the
planning map with corresponding policies and regulations for their protection.
-
Need for a regulation to require the removal of abandoned buildings and structures that
are a concern in terms health, safety, and aesthetics. Council should be able to order
demolition. When a structure is removed, land should be put back in its natural state.
-
Need to prevent infilling of saltwater and shoreline buffer areas except for coastal essential
infrastructure such as wharves, fishing stages, etc.
-
Need for the preserve and upkeep Salvage's iconic fishing stages, which are a
fundamental component of the Town's heritage. Discussed what policies, regulations, and
incentives could be put in place to help with their preservation. Consideration should be
given to alternative economic uses for stages that no longer have a fishing function.
Suggestions included low-cost accommodations for travelling groups (e.g., hikers,
cyclists, kayakers), small food and entertainment events, etc.
-
Other heritage assets include the Pickersgill property on Burden's Point and the Salvage
Museum, which are designated heritage properties, and St. Stephen's Church.
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-
Need for the designation of public visitor parking areas. Existing or suggested areas
include:
the cemetery parking lot on Beach Road (owned by St. Stephen's Church)
the old playground on Sunday Avenue (owned by Council), which is a trailhead for the
Coastal Ridge Trail
an open area between the Beach Road cemetery and Backside Beach, which could
be set aside for parking as part of a greenspace area
the school bus turnaround near fishplant, which could be used for parking in the
summer and other times that the school is not open
-
Residential infill. It was suggested there are areas of vacant frontage along existing streets
that may offer opportunities for additional housing.
2.5.2 Cultural Mapping Workshop (Heritage NL) - November 2-3, 2020
Associated with the municipal planning process, the Heritage Foundation of Newfoundland and
Labrador offered to facilitate a cultural mapping workshop for the community. The workshop
included two segments occurring on November 2nd and 3rd, 2020.
Session I was open to everyone and was attended by 15-20 local residents. Participants shared
information about the community's tangible and intangible cultural assets, its special places, and
people.
The discussion concluded with an identification of historical themes and
clusters/concentrations of heritage assets to shape the focus of needed actions for protection and
development.
Session 2 brought together 20-25 stakeholders to explore opportunities for protecting,
safeguarding, and developing the Town's heritage asserts. In addition to residents, participants
included representatives of Salvage Town Council, the Fisherman's Museum, local businesses,
the Beaches Tourism Association, Eastport High School, St. Stephen's Anglican Church, the
MHA's office, Adventure Central tourism association, the Department of Tourism, Culture, Arts
and Recreation, and the Atlantic Canada Opportunities Agency.
Emerging from these workshops, Heritage NL prepared a report that identified four priority themes
that have informed the municipal plan development:
1. Fishing Knowledge and Fish Processing - fish stages and stores, trap berths, fish plants,
lobster canneries, old flakes, well known historic characters and related knowledge and
skills.
2. Old Routes and Paths/Trails - old roads and pathways used by early settlers, existing
trails and paths and traditional placenames and stories associated with them, and the
Fishermen's Museum as a hub for walking trails that radiate throughout the Town.
3. Cemeteries -
five known cemeteries plus burial sites in surrounding places and
Fishermen's Museum as a hub for families wanting to see where their ancestors are
buried.
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4. Traditional Placenames -
Record and preserve traditional placenames and names
associated with cod and salmon berths. Examples include Back Beach, Backside Beach,
Big Shoot, Cow head, Doctor's Pond, Saltwater Pond, The Gulch, Tommie Cove.
Secondary themes included Boats and Boatbuilding, Craft and Craftspeople, Folk Medicine and
Cures, and Archaeological Resources.
2.5.3 Second Open House -April 27, 2021
The second public consultation session took place on April 27, 2021 , at St. Stephen's Church
Hall. The session included an Open House from 2:30 to 5:00 PM and again from 6:30 to 8:30 PM.
It was attended by eight members of the public and four Council representatives.
No issues or concerns with the draft documents were raised.
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3.0 GOALS AND OBJECTIVES
This section outlines the Town's planning goals and objectives for the 2021-2031 period. A goal
is a desired state, which reflects the long-term intent of Council and relates to a major area of
interest or concern. An objective is a short-range step towards achieving the goal. In this context,
an objective is an outcome or output desired by Council in less than 10-years.
3. 1
Community Structure and Character
Goal:
Orderly and efficient land development and use of infrastructure and municipal
services, compatibility between land uses, avoidance of sprawl, and retention of the
Town's attractive natural and built features.
Objectives: Facilitate infilling along existing serviced streets new streets in close proximity to
existing streets and infrastructure.
Preserve and protect environmentally important and sensitive areas including water
supply areas, coastal resources, steep slopes, and visually significant features.
Preserve and maintain cultural and historic areas and buildings.
Ensure development is efficient in the use of municipal infrastructure and sensitive
to the existing physical form and historic character of the community.
Preserve and maintain heritage areas and buildings.
Facilitate better mobility for disabled and elderly residents through land and building
accessibility.
3.2
Economic Growth and Development
Goal:
Diversified and balanced economic development that fosters employment
opportunities, promotes a high quality of life, contributes financially to the
municipality, and protects the environment.
Objectives: Enhance tourism through the preservation and development of trails, cultural and
natural heritage, coastal shorelines, and visitor services and facilities.
Strengthen Salvage 's economy through development and promotion of its fishing
heritage, trails, and coastal scenery.
Allow for compatible mixed development of residential, tourism, recreational, open
space, and heritage uses.
Enhance Salvage as an attractive place to live year-round and seasonally, drawing
on its scenery, ocean access, cultural heritage, and recreational amenities.
Facilitate creative enterprises and home occupations that fit with the Town's
character and do not impinge on the reasonable enjoyment of neighbouring
properties and its historical landscape.
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3.3
Heritage Protection and Enhancement
Goals:
Development and protection of the Town's natural and cultural heritage.
Maintenance and strengthening of the Town's tourism industry.
Objectives: Strengthen Salvage's unique and significant place in Newfoundland and Labrador
history and culture, particularly its fishing heritage.
Preserve and enhance the Town's historic coastal buildings and townscape.
Develop, maintain, and protect the Salvage trails in order to showcase the Town's
coastal landscapes and grow local tourism.
Conserve and protect historic sites, buildings, and structures.
Enhance the economic value and preservation of the Town's iconic fishing stages
and wharves.
3.4
Environment
Goal:
Conservation, protection, and enhancement of biodiversity and important and
sensitive environmental resources.
Objectives: Provide municipal services at environmentally acceptable standards.
Protect the Salvage drinking water supply from land uses and activities that could
adversely affect water quality and quantity.
Conserve, protect, and enhance important and sensitive environmental resources,
including coastal shorelines, lakes, streams, wetlands, riparian areas, steep slopes,
barrens, fish and wildlife habitat, and scenic vistas.
Reduce stormwater flows, erosion, and impacts on receiving waters by improving
how runoff is managed in developed and developing areas.
3.5
Health and Social Well-Being
Goal:
Provision for the welfare of Salvage residents by addressing basic human needs,
community services, and quality of life.
Objectives: Facilitate opportunities to meet the needs of residents for food, shelter, health care,
education, employment, income, and safety.
Facilitate the housing needs of residents of all ages, income levels, and physical and
mental abilities (also see Section 3.6).
Enact development standards to address the mobility needs of elderly and disabled
residents and enhance Salvage as an accessible and age-friendly community.
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3.6
Housing
Goals:
Adequate housing for all residents regardless of age, income, abilities, and family
status.
Maintenance of a pleasant residential environment.
Objectives: Allocate sufficient residential land to meet anticipated requirements for the next ten
years.
Protect residential quality of life and property values.
Ensure housing remains affordable for all residents.
Manage residential development in a manner that preserves and protects sensitive
environments, heritage resources, and public open space.
Facilitate infilling along existing streets and where possible open up pockets of land
in close proximity to existing streets and water mains.
3. 7
Transportation
Goal:
Efficient transportation network to serve motorized and non-motorized transportation
needs in Salvage.
Objectives: Maintain safe and efficient access to residential areas, commercial establishments,
and recreational areas.
Provide adequate parking space and regulations to ensure the annual influx of
summer tourists does not interfere unreasonably with the normal transportation
needs of residents.
3.8
Open Space and Recreation
Goal:
Provision of attractive natural areas and outdoor facilities to accommodate active
and passive recreation for Salvage residents and visitors.
Objectives: Involve residents and local businesses in the planning of open space, trails, and
associated infrastructure.
Support community organizations in organizing recreation and festival activities and
events.
Protect and enhance public access to the Town's coastal shorelines and scenic
viewsheds.
3.9
Capital Works
Goal:
Acceptable and consistent level of water and road services.
Full utilization of existing capacity prior to investing in new municipal infrastructure.
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Objectives: Maintain the Town's water supply and distribution system in good condition to supply
water for the year-round needs of residential and commercial users.
Service and maintain the Town's streets in reasonably good condition at all times of
the year.
3. 10 Governance
Goal:
Effective, efficient, and equitable municipal services to all residents within the fiscal
capacity of the Town.
Collaboration with other levels of government, community organizations, and the
business community to facilitate opportunities to improve municipal services and
economic development.
Objectives: Promote public participation in municipal governing processes, including Council
elections, committee activities, and decisions-making on important municipal
matters.
Deliver municipal administration and services effectively, efficiently, openly, and
within the Town's fiscal capacity.
Govern the Town in compliance with relevant legislation such as the Municipalities
Act 1999 and the Urban and Rural Planning Act 2000.
3. 11 Municipal Finance
Goal:
Management of municipal expenditures and revenues so as to provide municipal
services within a framework of long-term financial stability.
Objectives: Manage municipal expenditures and debt burdens in a prudent manner and
according to the Town's ability to pay.
Enlarge the Town's economic base in order to generate more tax revenues.
Ensure that growth-related capital costs do not place an undue burden on residents'
ability to pay.
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4.0 COMMUNITY WIDE POLICIES
4. 1
Policy Framework
This section provides the policy framework for the planning of Salvage as expressed in the Goals
and Objectives outlined in Section 3.0.
The overriding thrust of the Municipal Plan is to ensure the continuance of an efficient and
sustainable community, to maintain the Town's unique and attractive character based on a
compatible mix of built-up land uses and open space and optimize economic development
opportunities particularly in relation to outdoor adventure and cultural tourism.
To accomplish the overall intent of the Plan, the following policy initiatives are put forward:
1.
Areas that can be developed and serviced at the most reasonable long-term costs to the
Town will be given priority for future growth. Highest priority is placed on the infilling of
vacant land along serviced streets. Second priority is placed on areas that are affordably
close to existing streets and water mains. Development will be restricted in areas that
would entail prohibitive costs to develop and maintain new infrastructure and provide
services.
2.
Prominent features that contribute to the character of the built-up community, such as
harbour stages, wharves, historic buildings, open space, trails, and scenic vistas will be
protected and maintained to the fullest extent possible.
3.
The natural environment will be protected to a high standard, particularly sensitive and
scenic coastal features, wetlands, steep slopes, and vulnerable terrestrial and marine
habitat.
4.
Capital works will be undertaken in an efficient, financially prudent, and environmentally
responsible manner.
4.2
General Land Use Policies
4.2.1 General Layout of the Town
(1)
Council will encourage and support additional built-up development only in areas that are
economical to connect to existing roads and water services.
(2)
Council will give priority to infilling vacant serviced land over the development of new
streets and infrastructure.
(3)
Council may refuse proposed developments in locations where roads and municipal
services are inadequate, or it would be uneconomic to expand and maintain roads and
municipal services.
(4)
Council will require land developments to include reasonable measures to reduce
stormwater runoff from the site, including as necessary the setting-aside of green areas
for stormwater drainage.
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(5)
Council may refuse proposed new developments, building alterations, and demolitions
that would undermine the Town's historical character, coastal landscape, and
harbou rfront.
4.2.2 Compatibility of Uses
(1)
As much as possible, Council will ensure that new developments will not negatively affect
existing land uses through the creation of hazards or nuisances such as congestion,
unsightly appearance, noise, dust, and odour.
(2)
As much as possible, Council will ensure that new developments, including removal and
alterations of buildings and structures, will not negatively affect the character of the
existing townscape and heritage resources.
4.2.3 Non-Conforming Uses
In accordance with the Urban and Rural Planning Act 2000, a use of land that legally existed on
the date of the registration of this Municipal Plan shall be allowed to continue irrespective of its
conformity to the Plan or Development Regulations. Specific provisions concerning legal non-
conforming uses are set out in the Development Regulations.
4.2.4 Land Development Proposals
1.
Site Environmental Suitability
When reviewing a proposed development or subdivision of land, Council will consider the site's
suitability with respect to soils, geology, coastal shorelines, watercourses, wetlands, steep slopes,
climate change concerns, and overall environmental sensitivity. When considering approval,
Council will ensure that the development will have minimal negative effects on water resources,
coastal features, surrounding properties, and nearby heritage sites and buildings.
2.
Land Needed for Environmental Protection
When approving a development, Council may require portions of the proposed site to be set aside
from development or vegetation clearing in order to reduce and control stormwater drainage and
erosion. Council's authority to require land to be set aside for environmental purposes derives
from Section 13(3) of the Urban and Rural Planning Act 2000. Land needed for such purposes
will not be included in the calculation of land for public use as set out in Section 37(1) of the Act.
3.
Coordination with Surrounding Development
New developments will be coordinated with surrounding existing developments, the street
network, and municipal infrastructure. New developments may be required to provide for access
to adjacent undeveloped lands.
4.
Municipal Services and Access
The scale of new development must be appropriate to the provision of municipal services and
street access. Council will ensure that a new development will make efficient use of existing
streets and infrastructure and will not create unreasonable servicing demands or costs. If Council
deems that a proposed development cannot be efficiently connected to or serviced by existing
roads and infrastructure, it will refuse the development.
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5.
Public Input
Council may seek input from nearby residents and landowners when reviewing development
proposals.
6.
Council Decision
Council will review each development application on a case-by-case basis and may:
(a)
Approve the application as proposed,
(b)
Approve the application subject to certain terms or conditions,
(c)
Defer a decision subject to more detailed information or requested modifications, or
(d)
Refuse the application if it deems that the development:
(i)
would be unsuitable for the location,
(ii) would be prohibitively expensive to service or maintain,
(iii) would create environmental or other problems that cannot be sufficiently corrected or
mitigated, or
(iv) would negatively affect important heritage properties and/or values.
4.2.5 Consolidation and Infill of Serviced Areas
(1)
Council will encourage moderate intensification of development in areas that are
accessible to piped water services. This can occur through infilling of vacant land along
existing roads and keeping new street development in close proximity to existing
infrastructure.
(2)
Proposals for infill development must be compatible with the character of the surrounding
area heritage sites in particular, retention of open space, and provision for current and
future public works.
(3)
Proposals for infill development must be in accordance with environmentally sound
development standards with respect to lot size and sanitary onsite sewer treatments and
disposal.
4.2.6 Adaptive Re-use of Existing Buildings and Properties
Council will encourage the adaptive re-use of existing buildings and properties for land uses are
permitted within the designation and would be compatible with the existing land uses and physical
character of the surrounding area.
4.2.7 Permitted, Discretionary and Prohibited Uses
1.
Permitted Uses
For every zone included in the Development Regulations, Council will decide the classes of
development that will be permitted in that zone. Generally, any proposed development that
qualifies as a permitted use class in a particular zone will be permitted in that zone.
2.
Discretionary Uses
Council may decide that certain classes of land use should be set out as discretionary uses in a
particular zone in the Development Regulations, where:
(a)
The suitability of the use is not clear and may depend on the characteristics and
circumstances of individual locations within the zone,
(b)
Council determines that the use might negatively affect the predominant uses of the zone
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and, in order to prevent or mitigate this impact, it would be desirable to consult with the
public prior to taking a decision to approve or refuse a development permit.
(c)
Council determines that the use might be incompatible with the heritage or general
character of an area or an important scenic resource and, in order to prevent or mitigate
this impact, it would be desirable to consult with the public prior to taking a decision to
approve or refuse a development permit.
(d)
It is necessary to attach conditions to an approval to ensure that the use is developed in
a way that is compatible with nearby land uses and the character of area.
3.
Prohibited Uses
If a proposed development does not qualify as permitted or discretionary use class as set out in
a particular zone, the development will be prohibited in that zone.
4.2.8 Mineral Exploration
(1)
Subject to other provisions of this Municipal Plan, mineral exploration that is not classed
as a development (by virtue of drilling, appreciable ground disturbance, or construction of
access roads) may be permitted anywhere in the Planning Area, provided that Council is
given previous notice.
(2)
In accordance with Sections 12 and 13 of the Mineral Act, no exploration of any type will
be permitted on privately owned land without the consent of the landowner.
(3)
Mineral exploration that is classed as a development may be permitted in certain
designations, provided that adequate provision is made for environmental protection, site
reinstatement, landscaping, buffering, or mitigations of impacts on residential, commercial,
industrial, institutional, and recreational areas.
(4)
Mineral exploration will be permitted only if all necessary Provincial approvals have been
obtained.
4.2.9 Mineral Working
(1)
Mineral working operations, where permitted, will be subject to terms and conditions to
minimize impacts on environmentally sensitive areas and existing development.
(2)
Mineral working operations will take measures to minimize negative impacts on water
resources and other sensitive environmental resources.
4.2.1 O Forest Resources and Trees
(1)
Forests will be preserved and protected for the production of timber-based products as
well as the realization of important non-timber values such as fish and wildlife habitat,
water quantity and quality, biodiversity, scenery, recreation and tourism.
(2)
Harvesting of forests and trees will respect the Town's objectives for environmental
protection, preservation of scenery, outdoor recreation, stormwater control, and drinking
water protection.
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4.2.11 Utilities
1.
Utility Easements and Facilities
Utility facilities, such as transmission lines, communication towers, water treatment facilities and
pipes, and sewage pipes and outfalls may be permitted in all land use designations subject to
conditions set by Council. Council may restrict, or place conditions on, the development of certain
utilities within the Open Space-Conservation and Protected Water Supply Area designations.
Utility uses, such as transmission lines, communication towers, water and sewer pipes and
treatment facilities, energy generation facilities, and pollution control facilities, may be permitted
in all land use designations subject to conditions set by Council. Council may restrict the
development of certain utilities within the Open Space/Conservation and Protected Water Supply
Areas designations.
2.
Alternative Energy Facilities
Wind, small hydro, and solar energy generation facilities may be permitted in any land use
designation subject to conditions set by Council, including the following:
(a)
The location and design of such utilities shall take into consideration potential impacts on
nearby land uses, persons, and the natural environment.
(b)
Wind generators permitted within built-up areas will be limited to single turbines designed
to serve individual properties.
(c)
To provide for adequate safety and comfort of persons and properties, Council will ensure
that there is an adequate separation distance between any type of wind generator and
nearby buildings and structures.
(d)
Energy utilities are subject to required approvals by relevant provincial and federal
departments.
4.2.12 Archaeological Resources
Archaeological sites are protected under the Historic Resources Act. If such a site is discovered,
development will stop and no further development will occur until the Provincial Archaeology
Office has been notified and provided directions on how the development should best proceed.
4.2.13 Provision for the Disabled and Elderly
Council will consider the mobility needs of disabled and elderly residents in the planning and
design of municipal streets, recreational facilities, and when approving commercial, public, and
large residential buildings and facilities.
4.3
Heritage Policies
Council places high priority on preserving and strengthening Salvage's unique place in
Newfoundland and Labrador history and culture. Protecting and enhancing the Town's natural
and built heritage is fundamental to this goal and to the importance of tourism in the local
economy.
Land use decisions by Council will duly consider how heritage properties and scenic viewsheds
will be affected.
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4.3.1 Heritage Values
Historic Significance
The English fishery started in Salvage and nearby Barrow Harbour as early as 1667.
There is evidence of settlement by 1672 however these settlers disappeared by the early
1700's. Permanent residency was established in the 1780's encouraged by proximity to
the fishing grounds and the sheltered harbour. By 1820 Salvage was a thriving community
of inshore fishing families with a school, a church, and a population over 500. The cod
resource gradually became depleted as fishing increased and by the 1840's many
families turned to the Labrador fishery, migrating to Labrador over summer and returning
again in the fall.
As the Labrador fishery began to decline by the early 1900's so did the community's
population. Where it had 591 residents in 1891, by 1951 there were 161. However, by
1961 this rebounded to 270 residents due to the resettlement of families from the Flat
Islands. While it remains an important aspect of the community, the fishery is no longer
the mainstay that it was. The Town's fishplant, rebuilt after being destroyed by fire in 2001,
had its doors shut for good in 2012.
Description of Historic Place
The built-up area of Salvage is concentrated around two harbours - Salvage Harbour and
Bishop's Harbour. Situated around the harbours are about twenty stages and stores
painted in red ochre, many of them still functional fishing premises. They create a strong
visual impression on the landscape and provide a vivid demonstration of Newfoundland's
outport history and culture.
Set back from the harbour are a mixture of old and new residential homes and public
buildings. A number of these houses were floated in from the Flat Islands during the
resettlement of the 1950's. St. Stephen's Church, built between 1858 and 1862, is one of
the oldest Anglican Churches in Newfoundland. Provincially designated heritage
properties include the Fisherman's Museum in Bishop's Harbour and the Pickersgill
premises on Burden's Point. Another historic building, the former Orange Lodge, was
restored as an eatery and pub now catering to the Town's quickly growing tourist market.
Almost completely landlocked by surrounding hills, Salvage Harbour offers welcome
security to vessels from often storm ravaged seas. According to historian Gordon
Hancock, "One can be awed by the formidable natural setting, particularly the imposing
hills and the daunting seascape often displaying powerful motions and disguising hiding
rocks and dangerous shoals."
Character-Defining Elements
Salvage is valued for its compelling representation of the 19th and early 20th century
inshore fishery and outport culture. The harbour, community and surrounding hills achieve
aesthetic value through the styles, colours, and placement of stages, stores, church,
historic homes, and striking landscape features.
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While not necessarily an exclusive list, the following are key elements that define the
cultural and natural character of Salvage and are important for preserving heritage and
aesthetic values:
-
Stages and stores surrounding the harbour front, some of them floated in from the
Flat Islands in the 1950's
-
The 160-year-old St. Stephen's Church
-
Early and mid-20th century two-storey homes, a number of which were floated in
from the Flat Islands in the 1950's, scattered throughout the community
-
The Fisherman's Museum, a registered heritage property and originally the home
of a fishing family
-
The Burden's Point/Pickersgill Premises, a registered heritage property. This early-
20th century fishing premises consists of two houses and several outbuildings
including one that was used for blacksmithing
-
The former Orange Lodge since restored and redeveloped as an eatery and pub
-
The former fishplant premises since converted to a tourist facility
-
Narrow streets and loose placement of houses and buildings as influenced by the
natural landscape factors, constraints, and opportunities
-
Traditional paths and roadways to the shoreline
-
Traditional paths and roadways to the surrounding hillsides and barrens used for
berry picking, firewood cutting, and hunting
-
Historic rock walls and path supports
-
Fields and open areas where sheep, goats, and ponies once grazed freely
-
Former nearby communities such as Wild Cove, Broomclose, and Sailor's Island
that interacted and traded with Salvage
-
The closed-in harbour sheltered by steep imposing hills
-
Five cemeteries plus some burial sites scattered around the Salvage outskirts
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-
New hiking trails and hillside viewpoints overlooking the harbour, community and
oceanside seascape
4.3.2 Heritage Protection and Enhancement
(1)
Council will endeavour to protect sites, buildings, structures, and viewsheds that are
important for preserving Salvage's natural and built heritage. This includes interpretive
sites, historic areas, the Town's famous harbourfront and fishing stages, historic homes,
and spectacular coastal scenery.
(2)
When reviewing a development or demolition application or proposed subdivision of land,
Council will consider the potential effects on the Town's historic character and scenic
landscapes.
(3)
Council will cooperate with landowners to identify new or enhanced uses for historic
buildings and make owners aware of public programs aimed at helping to preserve built
heritage.
4.3.3 Designated Heritage Properties
1.
Designated Provincial Heritage Properties
Council will cooperate with Provincial authorities to ensure existing and future registered
provincial historic sites and buildings are protected in accordance the Historic Resources Act
(RSNL 1990 CHAPTER H-4).
2.
Council Designation of Heritage Properties
Under authority of Section 200 of the Municipalities Act 1999, Council may designate additional
sites, buildings, and structures as "Municipal Heritage Properties."
4.3.4 Stages and Stores
The fishing stages and stores surrounding Salvage Harbour and Bishop's Harbour are central to
its history and popularity as a destination for tourists and summer residents. Council will
encourage the preservation and improvement of these properties and encourage new
development that complements the existing harbourfront character.
1.
Harbourfront Properties
No harbourfront property will be built upon or otherwise developed except under a development
permit issued by Council and in accordance with any terms and conditions specified in that permit.
2.
Demolition of Fishing Stages
No fishing stage will be demolished except under a demolition permit issued by Council and in
accordance with any terms and conditions specified in that permit.
3.
Alteration of Fishing Stages
No exterior of a fishing stage will be altered except under a permit issued by Council and in
accordance with terms and conditions specified in that permit.
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4.
Applications for New Development
Council will review applications for new harbourfront development with respect to potential impact
on the character of the harbour and general heritage values. At its discretion, Council may set
conditions on an approval or may refuse an application if it deems that potential negative impacts
cannot be sufficiently minimized or mitigated.
4.3.5 Adaptive Re-use of Stages and Historic Homes
Council will encourage the adaptive reuse of fishing stages and historic homes and properties for
land uses and activities that would help to facilitate their preservation, restoration, and
enhancement of heritage values. This may include business, residential, cultural, and institutional
activities that would enhance the economic viability of their preservation.
4.3.6 Use of Discretionary Authority
Whether or not a proposed development or demolition complies with this Municipal Plan and the
Salvage Development Regulations, Council may exercise its discretionary authority to:
-
Approve a development application that, in its opinion, would contribute to the preservation
or improvement of a fishing stage, historic home or general heritage values of the area.
-
Prohibit or set conditions on a proposed development or demolition that, in its opinion,
would negatively affect or interfere with the preservation of a fishing stage, historic home,
scenic viewshed, or general heritage values of the area.
4.4
Environmental Policies
Conservation values are intrinsic to this Municipal Plan. High priority is given to protecting
sensitive areas and habitat. Council will protect sensitive areas and water resources with a focus
on ensuring the integrity of the Town's drinking water supply and minimizing erosion, watercourse
sedimentation, and degradation of sensitive coastal features. Land use decisions will duly
consider environmental sustainability and biodiversity objectives.
4.4.1 General Environment
1.
Biodiversity
Maintaining biodiversity will be of foremost consideration in the planning and approval of future
development in the Municipal Planning Area.
2.
Protection of Sensitive Areas
Environmentally sensitive lands, including the water supply area, watercourses, riparian areas,
wetlands, steep slopes, unstable soils, sensitive coastal features, and terrestrial and marine
habitat, will be protected from potentially damaging development.
3.
Consideration of Environmental Impacts
Potential environmental effects will be considered when reviewing development applications. At
its discretion, and in accordance with other statutory requirements, Council may refer
development proposals for regulatory approval to Provincial and Federal agencies such as
Environment and Climate Change and Municipal and Provincial Affairs, Digital Government and
Service NL, Health and Community Services, and Fisheries and Oceans Canada.
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4.4.2 Soils and Drainage
(1)
Development shall be permitted only on lands with soil and drainage conditions that, in
the opinion of Council, are suitable for the proposed use.
(2)
Development in areas that are environmentally sensitive or hazardous due to wet or
unstable soils, a high-water table, or unstable geological conditions, may be restricted or
subjected to terms and conditions to reduce potential impacts.
4.4.3 Watercourse and Wetland Protection
(1)
Development in the vicinity of a watercourse or wetland will be carried out in a manner
that minimizes the potential for environmental impacts, protects natural drainage, and
preserves existing public access to the water.
(2)
Where it believes that a proposed development may affect a wetland, at its discretion,
Council may:
(a) establish a buffer from the edge of the wetland in which development may not be
permitted,
(b) set conditions or restrictions on the development to protect the wetland, and/or
(c) refuse to approve the development if it believes that negative impacts cannot be
sufficiently minimized or mitigated.
4.4.4 Freshwater and Coastal Shorelines
Development in the vicinity of freshwater and coastal shorelines shall be carried out in a manner
that minimizes environmental impacts, protects natural features, and preserves existing public
accesses to and along the shoreline.
4.4.5 Steep and Unstable Slopes
Steep and unstable slopes may be subject to development restrictions or other conservation
measures designed to minimize environmental impacts and hazards to humans and properties
resulting from development.
4.4.6 Storm Drainage
Development will not be permitted in a manner that may cause excessive increases in stormwater
runoff such that it might be detrimental to adjacent properties, steep or unstable slopes, nearby
watercourses, shorelines, and other sensitive areas.
4.4.7 Excavation and Infilling in Shorefront Areas
In shorefront areas, no large-scale excavation or infilling of land will be permitted above or below
the water line except where it is relates to an approved dock, slipway, fisheries or marine facility,
or public work that has been approved by Council and received necessary approvals from the
Department of Environment and Climate Change and the Department of Fisheries and Oceans.
4.4.8 Use of Discretionary Authority
Council may exercise its discretionary authority to prohibit or set conditions on a development
when, in its opinion, the development might result in undesirable environmental impacts, for
example, excessive drainage onto adjacent properties, soil erosion, or scouring and siltation of
streams.
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4.5
Infrastructure Policies
4.5.1 Water Supply System
Council will maintain its water supply system, including intake, treatment plant and distribution
system, in good working order to ensure the availability of an adequate water supply for residents,
businesses, and public facilities.
4.5.2 Stormwater Management
Council will maintain storm drainage ditches and facilities in good working order.
4.5.3 Water Servicing Requirements for New Development
(1)
All water infrastructure associated with new land development must meet the minimum
standards of Council.
(2)
The costs of installing water services and connecting new lots to the municipal system will
be the sole responsibility of the developer.
4. 6
Transportation Policies
The transportation system in Salvage includes collector and local roads, as well as public trails
and walkways.
4.6.1 Consideration of Environmental Impacts
Roads, water crossings, and associated infrastructure will be located and constructed so as to
minimize adverse impacts on environmentally sensitive areas and resources.
4.6.2 Street Design and Construction
(1)
Street location, design, and construction wtll meet Council's minimum requirements for
public safety, traffic efficiency, access to adjoining land, and construction quality.
(2)
The layout of a new street will provide adequate reservations to accommodate road
extensions and access to backland areas for future development.
(3)
The costs of constructing and connecting new streets to the municipal street system will
be the sole responsibility of the developer.
4.6.3 Provision for the Disabled and Elderly
Streets, public walkways, parking areas, and access points to public and commercial buildings
will be designed to facilitate easy access and movement by disabled and elderly persons.
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5.0 LAND USE DESIGNATIONS
In addition to general policies that apply throughout the Planning Area, The Town's growth and
development will be managed by designating lands to broad land use categories. These
designations are shown on Future Land Use Maps 1 and 2. Policies outlined in this section specify
Council's intent related to land use and forms of development in each of the following land use
designations.
Future Land Use Desicmations
Open Space-Conservation
Protected Water Supply Area
Coastal
Residential
Harbourside
Rural
5. 1
Open Space-Conservation
5.1.1 General Intent
Corresoondina Zones
Open Space-Conservation
Protected Water Suoolv Area
Coastal
Residential
Harbourside
Rural
osc
PW
C
RES
HS
RU
Land is designated Open Space-Conservation to protect environmentally sensitive and important
lands, areas that are valuable for aesthetic protection, passive recreation and tourism, and lands
that are otherwise not suitable for built-up development.
5.1.2 Open Space-Conservation Zone
1.
Land Use
(1)
Conservation and open space uses are permitted.
Buildings and structures normally associated with open space uses such as viewing
platforms, picnic shelters, outdoor interpretation, parking areas, etc. are permitted.
(2)
At its discretion, Council may permit new accessory buildings on existing residential
properties, antennas, cemeteries, community gardens, docks and slipways, mineral
exploration, and utilities.
5.2
Protected Water Supply Area
5.2.1 General Intent
The Protected Water Supply Area designation is established to protect source water for the
Salvage municipal drinking water supply. Highest priority of this designation is to ensure land uses
and development will not negatively affect surface water and recharge areas for this water supply.
5.2.2 Protected Water Supply Area Zone
Salvage's drinking water supply area is located within the Wild Cove Pond Water Supply Area,
which is designated under the Water Resources Act (Regulation 732196). The purpose of the
Protected Water Supply Area zone is to protect the quality of source water for the Town.
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1.
Land Use
(1)
Conservation and water utility uses are permitted.
(2)
Discretionary uses may include antennas, open space, transportation, and utilities.
2.
Department of Environment and Climate Change
No development of any kind will be permitted in the Wild Cove Pond Water Supply Area without
the required permit(s) and guidance of the Water Resources Management Division of the
Department of Environment and Climate Change.
3.
Water Supply Area Monitoring and Enforcement
(1)
Council will monitor land uses and activities in the Protected Water Supply Area
designation to ensure they are being carried out in a manner that will not harm
water quantity and quality.
(2)
Uses or activities that are found to be taking place in a manner deleterious to the
water supply will be subject to an immediate stop-work order.
5.3
Coastal
5.3.1 General Intent
The purpose of the Coastal designation is to protect sensitive coastal features while allowing
certain commercial and recreational uses and infrastructure that are coastal location essential.
5.3.2 Coastal Zone
In the Coastal zone priority is given to protecting sensitive coastal features and scenery, and to
accommodating commercial fishery, recreational and marine activities that have a bona fide need
for shoreline access.
1.
Land Use
(1)
Permitted uses of land in this zone include conservation, open space uses, small-scale
docks, slipways, stages, stageheads, and utilities.
(2)
At its discretion, Council may permit fisheries, marine, and marina facilities as long as they
are deemed to be coastal-location essential and compatible with protection of coastal
features and scenic viewsheds.
(3)
At its discretion, Council may permit a single dwelling on a private lot that existed on the
date that this Municipal Plan came into effect but only if there is no opportunity on the lot
to erect the dwelling outside the Coastal zone.
(4)
Council may consult with the Department of Environment and Climate Change and
Fisheries and Oceans Canada, and other relevant agencies before approving a proposed
development in the Coastal zone.
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5.4
Residential
5.4.1 General Intent
Land is designated Residential to preserve the amenity of exclusive residential areas and
accommodate new housing needs. Existing residential development consists of single detached
dwellings.
The Residential designation will facilitate housing in a way that maintains a pleasant residential
environment and provides for a diversity of year-round and summer residents. By permitting a
variety of housing forms, it is Council's objective to take advantage of new market opportunities
for higher density housing and help ensure housing remains affordable for different income
groups.
5.4.2 Residential Zone
Single detached dwellings will remain the predominant housing form in this zone. Highest priority
for development will be to optimize the use of existing infrastructure through infill along vacant
frontage as well as abutting areas that can be economically connected to existing water services.
1.
Land Use
(1)
Permitted housing the Residential zone include single dwellings and subsidiary
apartments.
Accessory buildings are permitted on residential lots.
Other permitted uses include conservation and open space.
Utilities are permitted subject to conditions that Council deems necessary.
(2)
Double dwellings, row dwellings and boarding houses may be permitted at Council's
discretion.
A home occupation may be permitted within a residential dwelling or a residential
accessory building in accordance with conditions required by Council.
Other discretionary uses include arts and crafts studios, bed and breakfasts,
campgrounds, energy generation facilities, kennels, mineral exploration, personal
livestock use, recreational open space, tourist cottages, tourist cottage establishments,
transportation, and visitor rental dwellings.
5.5
Harbourside
5.5.1 General Intent
The Harbourside designation takes in land on both sides of Mountainview Road and fronting onto
the Town's two harbours. Existing land uses in the Harbourside designation include:
-
Fishing stages and marine infrastructure fronting onto Salvage Harbour and Bishop's Harbour
-
The former fishplant since converted to a tourist facility containing accommodation units, a
restaurant and micro-brewery
-
A marine dock for unloading fishing boats and shipping fish next to the former fish plant
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-
A recreational boat marina
-
A pub and eatery in the former Orange Hall
-
Single dwellings scattered individually and in clusters along both sides of Mountainview Road
-
The Anglican Church, church hall, and Town Office
This designation recognizes the existing mix of fisheries, residential, commercial, and public uses
that has evolved in Salvage over time and anticipates the economic development opportunities
derived from the Town's fishing history, cultural landscape, and spectacular viewsheds. It is the
goal of Council to protect and enhance the mixed-use character of this historic area by
encouraging the continued use and improvement of operating fishing stages and the
redevelopment of vacant and underused properties for alternative economic development.
Council will carefully manage new development in this designation to maintain and enhance
Salvage's historic areas. It will promote land uses and design approaches that preserve and
enhance the time-honoured character of these areas.
Council will encourage the revitalization of the harbourfront by promoting and facilitating adaptive
re-use and redevelopment of vacant and underused buildings and properties that have suffered
from the decline of the fishery.
The Harbourside designation will accommodate a compatible mix of land uses to attract new year-
round and seasonal residents and facilitate tourism opportunities.
The following principles will be pursued within the Harbourside designation:
(a)
Adaptive reuse and redevelopment of vacant and underused properties and
buildings will be encouraged to the extent that the reuse or redevelopment will be
compatible with heritage values and will contribute to the revitalization of the area.
(b)
Preservation and enhancement of buildings and structures of architectural and
historic
interest will be encouraged.
(c)
The traditional community form will be maintained.
(d)
The appearance, scale, siting, and use of new buildings, as well as expansions and
alterations to existing buildings, will have regard for the heritage character of the
surrounding area.
(e)
Restoration and reuse of dilapidated buildings, structures and sites that contribute to the
historical legacy and visual character of the area will be encouraged.
(f)
Public rights-of-way, trails, open spaces, and scenic viewsheds will be preserved.
5.5.2 Compatibility of Uses
(1)
In evaluating development proposals, Council will pay particular attention to the
development's compatibility with existing land uses and its goal to protect the cultural
landscape of the harbour area.
(2)
Where an area within the Harbourside designation is predominantly residential in
character, a proposed non-residential development may not be approved if Council deems
that it would be incompatible with existing residential uses.
(3)
Before permitting any non-residential development, Council will be satisfied that its
requirements with respect to building setbacks, buffering between uses, off-street parking,
and other site related matters can be met.
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(4)
New development may be subject to conditions to ensure an attractive appearance,
complement the existing cultural landscape, and minimize negative impacts on existing
uses.
5.5.3 Use of Discretionary Authority
If Council deems that a proposed development in the Harbourside designation will adversely
affect the character or heritage values of the area, it may exercise its discretionary authority to
set terms and conditions on the development or to refuse the application.
5.5.4 Harbourside Zone
The Harbourside zone will accommodate a mix of fisheries, marine, residential, commercial,
public, and open space uses. Council will protect heritage values and scenic viewsheds, if
necessary, by prohibiting incompatible development.
1.
Land Use
(1)
Permitted housing the Harbourside zone includes single dwellings and subsidiary
apartments.
Accessory buildings will be permitted subject to standards and conditions required by
Council.
Conservation and open space are complementary permitted uses.
Docks, slipways, stages, and stageheads related to the fishery, tourism or recreational
use will be permitted.
Other permitted uses include arts and craft studios, bed and breakfasts, offices, personal
services, and visitor rental dwellings.
Utilities are permitted subject to any conditions Council deems necessary.
(2)
At Council's discretion, a home occupation may be permitted within a residential dwelling
or an accessory building in accordance with conditions required by Council.
Residential uses that may be permitted at Council's discretion include double dwellings,
row dwellings, and boarding houses.
Larger fisheries, marine, and marina facilities may be permitted at Council's discretion.
Other uses that may be permitted at Council's discretion include catering, clubs and
lodges, commercial accommodations, cultural and civic uses, drinking establishments,
emergency services, energy generation facilities, entertainment uses, assembly uses,
general garages, general services, indoor markets, light industry, mobile vending facilities,
outdoor markets, personal livestock uses, places of worship, recreational open space,
shops, take-outs, tourist cottages, tourist cottage establishments, and transportation.
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5.6
Rural
5.6.1 General Intent
Areas are designated Rural to recognize their importance for natural resource utilization, outdoor
recreation, certain industrial activities that may not be suitable in or near Salvage's built-up areas,
and in some areas, recreational cottages.
Urban encroachment into rural areas will be minimized in order to sustain resource-based
activities and reduce the loss, fragmentation, and degradation of natural habitat.
5.6.2 Rural Zone
The Rural zone recognizes land used presently or with the potential for forestry, mineral working,
and other natural resource developments.
1.
Land Use
(1)
Permitted uses in the Rural zone include antennas, conservation, crop agriculture, energy
generation facilities, forestry, mineral exploration, open space, and transportation.
(2)
Shoreline uses that may be permitted at Council's discretion include docks, slipways,
stages, stageheads, fisheries and marine facilities, and marinas.
Mineral working and mining uses may be permitted at Council's discretion.
General and light industrial uses, garden centres, and construction yards may be
permitted at Council's discretion.
Livestock agriculture uses may be permitted at Council's discretion.
Campgrounds, tourist cottages, tourist cottage establishments, and mobile vending
facilities may be permitted at Council's discretion.
An outdoor market or shop may be permitted at Council's discretion provided that the use
is accessory to a commercial agriculture use, campground, or tourist cottage
establishment.
Recreational dwellings and recreational open space uses may be permitted at Council's
discretion.
2.
Environmentally Sensitive and Scenic Areas
Council may refuse or set conditions on land uses and resource extraction activities in locations
where it deems that the use may adversely affect steep slopes, geologically unstable areas,
wetlands, watercourses, coastal features, and other sensitive areas. In these areas, protection
and conservation will take priority over development.
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3.
Forestry
(1)
Forest harvesting and management activities will be subject to the requirements and
supervision of the Forestry Branch of the Department of Fisheries, Forestry and
Agriculture.
(2)
Logging activities shall respect the Town's objectives for environmental protection,
municipal water supply protection, scenic preservation, and recreation areas.
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6.0 IMPLEMENTATION
The Salvage Municipal Plan will be implemented over the next 10 years through decisions of
Council. Of particular importance to Council are the following:
-
Effective administration of the Municipal Plan
-
Public participation
-
Development Regulations
-
The basis of development control, and
-
The procedure for considering amendments to the Municipal Plan.
6.1
Administration of the Plan
The Salvage Municipal Plan is comprised of goals and objectives (Section 3 of this document),
community-wide land use policies (Section 4), designation-specific land use policies (Section 5),
and a program of implementation (Section 6). The Background Report (Section 2) provides
information but does not form part of the legally binding Salvage Municipal Plan. All development
applications will be evaluated as to their conformity to the policies in the Municipal Plan.
6.1.1 Map Interpretation
(1)
For the purpose of administering the Municipal Plan, Future Land Use Maps 1 and 2
shall be read only in conjunction with the goals, objectives, and land use policies of the
Plan.
(2)
The boundaries of the land use designations shown on the Future Land Use Maps are
general only and, except where they coincide with roads, shorelines, or other prominent
physical features, are not intended to define exact limits. No amendment to the Salvage
Municipal Plan shall be required to allow minor adjustments of the land use boundaries.
Other than such minor boundary adjustments, no development shall be permitted that
does not conform to the Plan.
6.1.2 Development Applications
(1)
A person wishing to develop land within the Salvage Municipal Planning Area must apply
to Council for permission through the established procedure. Council shall require that all
development applications conform fully to the Salvage Municipal Plan before proceeding.
Council may approve an application, set conditions on approval, or refuse the application.
The decision of Council may be appealed to the appropriate appeal board by the applicant
or a third party.
(2)
Once conformity to the Municipal Plan has been established, Council shall ensure that
each development proposal is given an evaluation.
(3)
If Council suspects that a Provincial or Federal policy or statute may come into effect, it
will refer the development proposal to the relevant government department or agency for
approval or comments.
(4)
Council's final decision on an application will be based on the desire to guide the
development of Salvage in the best long-term interest of residents and landowners.
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(5)
Provisions regarding the appeal of Council decisions on development applications will be
contained in the Development Regulations.
6.1.3 Subdivision Proposals and Agreements
(1)
All persons wishing to subdivide or develop land for any purpose within the Planning Area
shall apply to Council for permission on the prescribed application form and shall submit
a detailed drawing of the proposal indicating the location and dimensions of the land and
the development.
(2)
Council will review the application on the basis of the Development Regulations and
consideration of the following:
(a)
Physical conditions and features of the site and opportunities for and constraints
on development.
(b)
How the proposed subdivision will connect to existing roads, how it will affect
existing developments, and whether it will provide future access to undeveloped
lands in the area.
(c)
Compatibility with surrounding land uses, both existing and future.
(d)
Proposed municipal services and the long-term public costs of providing and
maintaining these services.
(e)
How stormwater drainage will be managed to minimize increased run-off onto
adjacent lands.
(f)
How the development may affect important and sensitive environmental resources.
(3)
Based on its review, Council may approve the application, approve it with conditions, or
refuse it.
(4)
Before approving a development, Council may require the developer to enter into a
development agreement, which will establish the conditions under which development will
proceed and shall be binding on both parties. Any conditions governing the development
will be enforced by attaching them to the development permit.
6.2
Public Participation
The Municipal Plan is an expression of the goals and aspirations of the citizens of Salvage,
therefore, periodic reviews of the Plan provide an opportunity for public participation and input
and can be an invaluable tool for the successful implementation of planning.
Council will take advantage of opportunities to involve the public in decision-making processes
with respect to future planning and development of the community.
6.3
Development Regulations
Pursuant to Section 35 of the Act, Council has adopted the Salvage Land Use Zoning and
Subdivision Regulations (referred to as the Development Regulations) in order to implement the
goals, objectives and land use policies of the Municipal Plan. The Development Regulations
control the subdivision and development of all land within the Salvage Planning Area.
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6.3.1 Council Responsibility
In accordance with Section 35 of the Act, the Development Regulations have been established to
ensure that land is controlled and used only in accordance with the Salvage Municipal Plan.
6.3.2 Content
The Development Regulations:
(a)
divide the Planning Area into land use zones
(b)
indicate permitted and discretionary land uses in each land use zone,
(c)
set out municipal-wide and zone-specific requirements and standards for the subdivision
and development of land,
(d)
set out the administrative procedures for dealing with development permit applications and
the issuing of development and building permits,
(e)
set out the regulations respecting the non-conforming development and use of land,
(f)
set the minimum notice periods for Council decisions respecting discretionary land uses,
non-conforming land uses, and variances,
(g)
set out the regulations and procedures respecting appeals of Council decisions, and
(h)
set out the regulations respecting the enforcement of permit requirements.
6.4
Development Control
6.4.1 Municipal Plan is Binding
The Salvage Municipal Plan is a legal document that is binding upon all persons and organizations
including Council.
6.4.2 Council Responsibility
Council shall exercise appropriate control over development in the Salvage Planning Area in
accordance with the Municipal Plan and the Development Regulations.
6.4.3 Right to Appeal
An applicant who receives a refusal decision from Council on a development application may
appeal that decision to the Appeal Board in accordance with the Salvage Development
Regulations.
6.4.4 Provincial and Federal Referrals
If Council deems that a proposed development may be affected by the policies or regulations of
a Provincial or Federal department, the application will be referred to the concerned department
for comments before a permit is issued.
6.5
Amending the Municipal Plan and Development Regulations
This Municipal Plan was prepared on the basis of existing and expected future conditions. It is
Council's intention not to amend the Plan for a five-year period after its adoption, after which
another Plan Review will be undertaken. Nevertheless, if circumstances change in unforeseen
ways during the planning period, Council may consider possible amendments to the Plan.
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6.5.1 Municipal Plan Amendment
If Council decides to adopt an amendment to the Municipal Plan, in accordance with Section 25
of the Act, the amendment procedure will be the same as for the adoption of the Municipal Plan
as a whole. This procedure is outlined in Sections 14 to 24 of the Act.
6.5.2 Stand-Alone Development Regulations Amendment
(1)
If Council decides to adopt an amendment to the Development Regulations that does not
also require a change to the Municipal Plan, the amendment procedure will be in
accordance with Section 35 (5) of the Act.
(2)
Council shall give notice of the proposed change in a newspaper circulated in the area
and shall receive representations with respect to those changes before forwarding the
adopted amendment to the Department of Municipal and Provincial Affairs and for
registration under Section 24 of the Act.
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