Municipal Planning Strategy (District of St. Mary's, 2022-10-18)
St. Mary's, Nova Scotia
· adopted 2022-10-18
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2022
MUNICIPALITY OF THE DISTRICT OF ST. MARY'S
MUNICIPAL
PLANNING
STRATEGY
Municipality of the District of St. Mary's - 8296 Highway #7 - Sherbrooke, NS
The Municipality would like to recognize
the many residents and stakeholders
who shared their thoughts, insights, and
aspirations for the Municipality throughout
the process of developing this Municipal
Planning Strategy and Land Use By-Law.
ACKNOWLEDGEMENTS
Adopted: 2022.10.18
Effective:
With Amendments To: N/A
TABLE OF CONTENTS
Contents
PART 1
Introduction....................................................................................................................... 1
1.1 Purpose........................................................................................................................2
1.2 Plan Goals and Structure..................................................................................4
1.3 Community Profile...............................................................................................7
1.4 What We Heard.....................................................................................................16
PART 2
Our Shared Future....................................................................................................... 23
2.1 Sustainability and Resiliency....................................................................... 24
2.2 Community Vision............................................................................................. 25
2.3 Authority and Scope..........................................................................................31
2.4 Provincial + Regional Considerations.................................................... 33
PART 3
Community Priorities................................................................................................39
3.1 Planning Context................................................................................................40
3.2 Overview of Approach.....................................................................................41
3.3 Public Lands and Services............................................................................. 42
3.4 Private Lands and Services........................................................................... 53
3.5 Other Municipal Priorities.............................................................................61
PART 4
Implementation Plan................................................................................................. 63
4.1 Municipal Plan Administration..................................................................64
4.2 Development Agreements............................................................................65
4.3 Land Use By-Law and Subdivision By-law..........................................66
4.4 Planning Approvals Process........................................................................ 67
4.5 Community Engagement..............................................................................68
4.6 Final Thoughts.....................................................................................................68
PART 1
INTRODUCTION
2
MUNICIPALITY OF THE DISTRICT OF ST. MARY'S | MUNICIPAL PLANNING STRATEGY
1.1 Purpose
The Municipal Planning Strategy (hereafter referred
to as 'MPS') represents the long-term planning
framework for the Municipality of the District of St.
Mary's. It outlines residents' vision for the future
and presents different planning strategies and
policies to achieve this vision. The MPS represents
the collective aspirations of both community
members and Council and helps to inform future
Council decisions on behalf of the Municipality.
The MPS establishes guidelines to manage land
use change, conservation, and development within
the local area. The MPS is an important resource
for residents and interested citizens, especially
those engaged in residential and commercial
development, to gain a thorough understanding of
the strategic direction of the Municipality.
The associated Land Use By-Law (hereafter
referred to as 'LUB') follows the policy framework
established by the MPS to outline the legal
requirements and land regulations within the
Municipality as well as the process for making
decisions regarding development permit
applications. The LUB is the principal legal
document that governs which types of land
use or development are allowable for individual
properties within the Municipality.
Figure 1.A District of St. Mary's
3
PART 1: INTRODUCTION | Purpose
The process of developing both this MPS and the
associated LUB was guided by engagement with
residents, community stakeholders, and business
leaders. Interviews, public workshops and an
online survey gathered valuable feedback from
citizens about the current state of the Municipality
as well as desired future aspirations.
To be effective, this MPS informs the
Municipality's strategy for capital investment,
asset management, and Committee and
Administrative (staff) workflows while also aligning
with existing municipal strategies and plans. This
MPS and associated LUB supersede the previous
MPS and LUB, approved in 2006, and act as the
new planning and regulatory framework for the
Municipality. This new MPS may be amended as
necessary, from time to time, to ensure relevancy
and to respond to future challenges and
opportunities.
This MPS has been prepared in accordance
with the provisions of the Municipal Government
Act Chapter 18 of the Statutes of Nova Scotia,
1998. Application of this MPS and the associated
LUB relate to land within the boundaries of the
Municipality of the District of St. Mary's as shown
in Figure 1.A.
4
MUNICIPALITY OF THE DISTRICT OF ST. MARY'S | MUNICIPAL PLANNING STRATEGY
1.2 Plan Goals and Structure
1.2.1 UPDATED PLANNING GOALS
In 2020, the Municipality of the District of St.
Mary's embarked on a significant update of its
previous MPS and LUB with the aim of realigning
those planning documents with the present needs
and desires of the community, and the mandatory
requirements of the Province of Nova Scotia. This
new MPS outlines the following five priorities:
»
protect and conserve the natural
environment,
»
encourage responsible economic growth
that benefits the community long-term,
»
improve and expand access to essential
community services,
»
enable existing residents to live lifelong in
the community and attract new residents,
and
»
capitalize on the rural assets of the District of
St. Mary's.
These revised priorities reflect the findings of an
extensive community engagement program as
well as the results of background reports and
studies that were produced and reviewed during
the course of developing this MPS.
The Planning Priorities reflect changes in the
Municipality since the completion of the first
MPS in 2006, and they also reflect the current
developmental needs and hopes among
residents, business stakeholders, and Municipal
Council. This MPS aims to improve land use
policies and processes to meet these strategic
goals, and align with the shared future and
community priorities as outlined in Part 2.
POLICY 1-1 Planning Priorities
Council may, through the MPS, set out
policies to:
1. Protect and conserve the natural
environment.
2. Ensure economic prosperity.
3. Improve community services.
4. Plan for community growth, and
5. Capitalize on rural assets.
Figure 1.B Planning Priorities for 2021-2031
5
PART 1: INTRODUCTION | Plan Goals and Structure
1.2.2 PLAN STRUCTURE
This MPS consists of policies and maps which
provide the policy framework for the Municipality
and which are implemented primarily through the
accompanying LUB. While this MPS is organized
into distinct parts, for any part to be properly
understood it must be read in the context of the
whole document, mapping, and LUB.
Through this MPS, the Municipality outlines what
changes will be implemented in the future in order
to improve current land use planning policies and
regulations. These future changes include:
Variable Land Uses - The Municipality will use
a well-developed land use planning approach
to plan a diverse range of land uses in order to
encourage the expansion of current economic
and cultural opportunities in the community.
Land Development Opportunities - The
Municipality will consider the current pattern
of land use and analyze potential for new
development opportunities, especially regarding
commercial land use zones.
Clarity of Regulations - The Municipality will
establish clear and concise land use policies and
regulations that eliminate confusion by improving
the current land use zoning approach and
utilizing tools (e.g. secondary planning strategies)
to better manage community expectations.
1.2.3 PLANNING PROCESS
This MPS and accompanying LUB were
developed over the course of intensive research,
analysis, stakeholder and community engagement,
and a rigorous review by the Nova Scotia
Department of Municipal Affairs and Housing.
Throughout the creation of these documents, the
process was guided by constant communication
with residents and business owners in St. Mary's.
The development of this MPS commenced
during April 2020 at the height of the COVID-19
pandemic, which dictated that the process follow
strict public health guidelines.
The first phase of development involved a careful
analysis of existing conditions in St. Mary's, including
historical, economic, and demographic data. During
this phase, a thorough overview of existing municipal
policies and regulations was also undertaken.
The second phase involved consultation with
residents, community business owners, and key
stakeholders to gather input regarding the most
important challenges and opportunities for future
planning. The potential impacts on adjacent
municipalities were also explored during this stage.
Drafts of both documents were created during the
third stage, and submitted to staff and Municipal
Council for discussion and to the Province for
review. Final versions of both documents were
created based on recommended revisions.
The fourth and final stage of the planning process
involved the approval of this MPS and the
accompanying LUB by Municipal Council.
A
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A
L
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Z
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C
O
N
S
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L
T
D
R
A
F
T
A
P
P
R
O
V
E
ongoing evaluaƟon and review including community input
background research &
policy review
idenƟfy key prioriƟes
with the community
draŌ MPS
& LUB
Council approves
final documents
NS Municipal
Affairs review
revise & write
final documents
consider impacts on
adjacent municipaliƟes
Figure 1.C Stages of the Planning Process
6
MUNICIPALITY OF THE DISTRICT OF ST. MARY'S | MUNICIPAL PLANNING STRATEGY
1.2.4 FORMER PLANNING AREAS
The former MPS identified five planning areas:
»
St. Mary's River South Area
»
Four Harbours Area
»
Gegogan Planning Area
»
St. Mary's River North Area
»
Liscomb River Area & Ecum Secum Area
These planning areas were separated on the
basis of watersheds in the Municipality. There
were no administrative differences between
the planning areas and the zones were uniform
throughout the Municipality. The practicality of five
administering planning areas in such a sparsely
populated municipality was questioned at the
beginning of the process and the planning team
decided there were no longer any benefits to
continuing with five different areas. This means
that planning policies and zones can now be
applied consistently across the Municipality.
Figure 1.D Former Planning Areas
7
PART 1: INTRODUCTION | Community Profile
1.3 Community Profile
Left: McDonald Brothers
Sawmill Historic Site.
Right: Main Street,
Sherbrooke Village.
1.3.1 ST. MARY'S PAST
Evidence of human subsistence in the St. Mary's
area dates back to the Late Archaic period,
around 5,000 years Before Present (BP), with
many found artifacts from that time indicating
a mixed terrestrial-marine subsistence system.
Ceramics dating from around 2,000 years
BP indicate a shift towards a more shellfish-
dependent lifestyle, and the use of new
technologies such as pottery. The Mi'kmaw
Nation are the descendants of this long legacy
of habitation that occurred in the St. Mary's area
before European colonization.1
In 1650, the French established Fort Sainte-
Marie along the banks of the St. Mary's River.
The fort was seized by the British in 1669 as
part of a decades-long struggle for control of
Nova Scotia, and in 1805 the community was
renamed Sherbrooke in honour of Sir John Coape
Sherbrooke.2
1 Poliandri, Simone. First Nations, Identity, and Reserve Life of the Mi'kmaq of Nova
Scotia. University of Nebraska Press, 2011.
2 "Place-Names and Places of Nova Scotia." Nova Scotia Archives, https://novascotia.
ca/archives/places/page.asp?ID=620.
In 1861 gold was discovered at Goldenville and
the area saw a dramatic increase in population.
People from across Canada and the United
States flocked to Sherbrooke and adjacent
settlements in the hopes of striking it rich.
Sherbrooke Village was the most important boom
town in the region until the late nineteenth century.
The Municipality of the District of St. Mary's was
incorporated in 1879.3
Sherbrooke Village (part of the Nova Scotia
Museum) retains its historic importance as a
demonstration ground for life during the height
of mining activity, and visitors to the Village can
enjoy exploring historic buildings while learning
about traditional trades, agricultural practices
and cultural activities. The Village is a significant
heritage site and source of visitors to St. Mary's.4
3 "Goldenville Gold District." Virtual Museum of Canada, http://novascotiagold.ca/theme/
exploitation_de_lor-mining/goldenville-eng.php.
4 "Transforming Sherbrooke into a Tourism Gateway." Atlantic Canada Opportun-
ities Agency, 14 Jan. 2019, https://www.canada.ca/en/atlantic-canada-opportunities/
news/2019/01/transforming-sherbrooke-into-a-tourism-gateway.html.
8
MUNICIPALITY OF THE DISTRICT OF ST. MARY'S | MUNICIPAL PLANNING STRATEGY
1.3.2 ST. MARY'S PRESENT
On April 17, 1879, a system of county and district
municipalities was established in Nova Scotia,
including the District of St. Mary's and its parent
county, Guysborough County.
The Municipality of the District of St. Mary's has
the smallest population of any district in Nova
Scotia, with an area that covers about 1,909
square kilometers. As a result, it has the smallest
population density of all 50 municipalities in the
province, at approximately 1.17 persons per km2.
The 'ruralness' of St. Mary's is celebrated by
permanent and temporary residents alike. In
2021, there were 1,538 private dwellings in
the Municipality (1.4 people per dwelling on
average), and 491 (or 32%) of those dwellings
were home to temporary residents. There was
a slow but steady drop in permanent resident
dwelling counts between 2011 and 2016, from
1,117 down to 1,042. Since 2016 there has been a
slight increase in the number of private dwellings.
Meanwhile, the temporary resident dwelling
count has declined more substantially over the
last two census periods, including a steep drop
in the number of temporary dwellings from 2016
to 2021. Still, the proportion of temporary versus
permanent resident dwellings is high when
compared to other Nova Scotia municipalities.
The availability of relatively inexpensive land and
its relative proximity to urban centres in HRM,
Truro, New Glasgow, and Antigonish are likely
factors that attract cottage owners and other
temporary residents to the area.
The St. Mary's River flows through the
Municipality to Sonora, south of Sherbrooke,
where it empties into the Atlantic Ocean. The
River is a notable landmark, and serves as
important habitat for riparian and aquatic species,
notably the Atlantic salmon. The river is one
in a small handful of rivers in Nova Scotia that
salmon still return to, therefore river health is vitally
important to the Municipality.
By road, St. Mary's is connected to the rest of
Nova Scotia via Highway 7, which links Halifax
and Antigonish through Sherbrooke. Highways
348 and 347 offer westerly connections to
Stellarton, New Glasgow, and beyond.
Most civil, educational, and health services
are located in Sherbrooke, and the Historic
Sherbrooke Village attracts the majority of visitors
to the Municipality.
Figure 1.E Number of Dwelling in St. Mary's, 2011 - 2021
1,200
1,600
1,400
600
200
0
1,000
800
400
2011
2016
2021
1,047
491
1,071
629
1,042
625
Private dwellings not
occupied by usual
residents
Private dwellings
occupied by usual
residents
9
PART 1: INTRODUCTION | Community Profile
Figure 1.G St. Mary's Population, 2001 - 2021
Population Dynamics
The 2021 Statistics Canada Census reported
the resident population of St. Mary's as 2,161
people, or 22% less than it was in 2001 when
2,766 residents were reported. Statistics Canada
reported a steady population decline in St. Mary's
over that period: -6.5% in 2006, -9% in 2011,
-5.1% in 2016, and -3.2% in 2021. For context, the
population of Nova Scotia declined by 1% over
that same time period.
Population decline is common in many rural
areas of Nova Scotia, but it is a concerning trend
because it impacts the level of services and
facilities in the community, the businesses that
will locate there, and the prospects for jobs and
economic development.
The majority of individuals in St. Mary's are
working-aged adults between 15 and 64 years of
age. The age distribution trends slightly older, with
only 10.6% of the population below the age of 15.
The majority of St. Mary's residents identify
as Non-Aboriginal. The largest self-identifying
aboriginal population is comprised by Métis.
There is also a small percentage of Inuk living
in the District. Taken together, the presence of
residents identifying with the Aboriginal peoples
of Canada is less than 4% of the total population.
2,000
2,500
500
0
1,500
1,000
2001
2006
2011
2016
2021
2,766
2,354
2,233
2,161
2,587
Figure 1.H Aboriginal Identity in St. Mary's, 2016
Métis
Inuk
0.5%
3.4%
Non-Aboriginal
identity
95.9%
Figure 1.I Gender in St. Mary's, 2021
Women+
Men+
Figure 1.F Age distribution in St. Mary's, 2021
0 - 14 Years
85+ Years
15 - 64 Years
65 - 84
Years
50.0%
49.8%
10.6%
3.7%
29.9%
56.0%
10
MUNICIPALITY OF THE DISTRICT OF ST. MARY'S | MUNICIPAL PLANNING STRATEGY
The distribution of male and female residents
in St. Mary's is quite even, with women
outnumbering men by 5 people. The 15 to 19 year
old and the 75 to 79 year old age cohorts exhibit
the largest discrepancies, each with a difference
of 20 people between the sexes. The most
prominent age group is between the ages 60 to
64 years old, comprising 11.1% of the population.
2021 population curves show that in St. Mary's
there is a greater share of residents above the
age of 54 as compared to Nova Scotia as a
whole. These graphs also show that in St. Mary's
there is a lower proportion of people below 55
years of age relative to the province.
The remoteness of the Municipality coupled with
the large percentage of temporary residents
suggest that there is a larger population of seniors
and a much smaller population of young families.
This means there is a lower proportion of jobs
and a higher demand on health services when
compared to other parts of the province.
Opportunities and Challenges:
Like many rural Maritime communities, the
Municipality has experienced gradual but
constant population decline over the past two
decades. The population is also aging, which
indicates a potential higher demand for affordable
housing and healthcare. The Municipality has
an opportunity to counteract these challenges
by attracting new, working-aged residents and
families with employment opportunities that
encourage business attraction, expansion and
retention. Promotion of the St. Mary's brand could
also serve to attract people and business to settle
in the municipality.
There is also an opportunity to continue to grow
the second home community in the Municipality,
increasing the tax base and attracting new
residents to encourage new service businesses.
Incentivizing people to move to the Municipality
could also enrich the ethnic and cultural make-up
of the community.
Figure 1.J St. Mary's Population Curve 2021
Figure 1.K Nova Scotia Population Curve 2021
Women+
Men+
40,000
30,000
20,000
10,000
0
125
100
75
50
25
0
0 to 4 years
5 to 9 years
10 to 14 years
15 to 19 years
20 to 24 years
25 to 29 years
30 to 34 years
35 to 39 years
40 to 44 years
45 to 49 years
50 to 54 years
55 to 59 years
60 to 64 years
65 to 69 years
70 to 74 years
75 to 79 years
80 to 84 years
85 to 89 years
90 to 94 years
95 to 99 years
100 years and over
0 to 4 years
5 to 9 years
10 to 14 years
15 to 19 years
20 to 24 years
25 to 29 years
30 to 34 years
35 to 39 years
40 to 44 years
45 to 49 years
50 to 54 years
55 to 59 years
60 to 64 years
65 to 69 years
70 to 74 years
75 to 79 years
80 to 84 years
85 to 89 years
90 to 94 years
95 to 99 years
100 years and over
11
PART 1: INTRODUCTION | Community Profile
Household Characteristics
In the District of St. Mary's, the majority of
residents that are over the age of 15 are either
married or in a common-law relationship, while
35.7% of the population have never married,
are widowed, or divorced or separated. The
percentage of married or common-law individuals
is higher in St. Mary's as compared to the
provincial rate, which may be a reflection of the
slightly older adult population in the District.
Two-person households are most common in
St. Mary's, followed closely by single-person
households. Households of three or more
individuals make up the remaining 22% of the
population. This indicates that the majority of
households either do not have children or are
part of the fraction of the 10.3% of lone-parent
households that have only one child.
Opportunities and Challenges:
In St. Mary's there is a high incidence of married
and common-law partnerships, and a low incidence
of households with children. This indicates that the
Municipality could benefit from a focus on attracting
families with children to settle in the area. This would
be beneficial for boosting the overall population and
enrolment in local schools, while also contributing to
create a more robust labour force.
Nearly one third of households consist of a single
person, which emphasizes the need to provide
ample socialization opportunities, especially
for seniors. Isolation, including amongst older
generations, is a common occurrence in rural
Nova Scotia that has the potential to negatively
impact individual health and happiness. The
Municipality has the opportunity to expand
social and cultural services to combat loneliness
and help promote greater interaction amongst
community members.
Figure 1.M Household Size in St. Mary's
5 or more persons
3 persons
2 persons
1 person
4 persons
2.9%
8.1%
11.0%
44.0%
Figure 1.L Marital Status in St. Mary's, 2021
Married
Never Married
Separated
Widowed
Common Law
8.5%
10.1%
18.1%
9.1%
53.9%
34.0%
12
MUNICIPALITY OF THE DISTRICT OF ST. MARY'S | MUNICIPAL PLANNING STRATEGY
Economics
The median income in St. Mary's was $49,920
in 2016, which is significantly less than the
provincial median of $57,294.
More than 38% of St. Mary's residents spend less
than 15 minutes on their journey to work, while
another 10% of residents have a commute that
takes more than an hour.
The industry that employs the most people is
sales and service, closely followed by trades,
transportation, and equipment services as well as
natural resources and agriculture.
Opportunities and Challenges:
The District of St. Mary's currently has a lower
median income as compared to the provincial
average, which indicates a need to focus on
creating higher-paid employment opportunities.
The Municipality has a comparative advantage in
terms of its relatively short commute times. This
should be incorporated into efforts to attract new
working-aged residents to the community.
The recent proliferation of remote work resulting
from the COVID-19 pandemic also presents an
opportunity for the Municipality to attract a digital
workforce to St. Mary's. With the appropriate
infrastructure in place, the Municipality could
encourage IT related businesses and other new
and expanding businesses to the area. There is
potential to establish a vibrant startup culture that
would aid in the retention of highly trained local
workers, and future growth in St. Mary's.
45
195
180
220
30
85
75
40
130
95
Management
Business, Finance + Admin
Natural + Applied Sciences
Healthcare
EducaƟon, Law, Social + Civil Services
Cultural + RecreaƟonal Services
Sales + Service
Trades, Transport + Equipment OperaƟons
Natural Resources + Agriculture
Manufacturing + UƟliƟes
Figure 1.N Industries of Employment, 2016
65
40
75
110
145
90
100
150
150
70
15
25
10
$0-4k
$5-9k
$10-14k
$15-19k
$20-29k
$30-39k
$40-49k
$50-59k
$60-79k
$80-99k
$100-124k
$125-149k
$150k +
Figure 1.O Median Household Income, 2016
13
PART 1: INTRODUCTION | Community Profile
Building Construction
Since 2012, new housing starts in the Municipality
range from a low of 6 in 2016 up to 19 in 2015
with an average of 11.7 new starts per year since
2012.
There have been an average of 35 permit
applications per year in this same time period,
which includes new builds, additions, new
detached dwellings, and dwelling relocations. In
St. Mary's, the average annual construction value
per year is $2,392,862.
Opportunities and Challenges:
As the population of St. Mary's continues to
decline and the pace of new construction remains
slow, St. Mary's faces the challenge of attracting
new residents to the municipality. These could be
part-time residents (often second home, summer
home, or cottage owners) or full-time residents.
While employment opportunities are usually
a prerequisite for people considering full-time
residency in St. Mary's, part-time residents may be
retired or employed in nearby urban areas, such as
Halifax.
Both full-time and part-time residents present
opportunities for the Municipality by contributing
tax revenue that can be used for a range of
municipal services and amenities. Part-time
residents tend to place a lighter burden on
municipal infrastructure over the course of a year,
as compared with their full-time counterparts. As
a result, their contributions to the municipal tax
base goes further per capita. Conversely, full-time
residents may be more engaged in local issues,
and their consistent presence makes them easier
to plan services around.
The Municipality faces the challenge of attracting
a healthy mix of part-time and full-time residents,
and providing services and amenities that are
suitable for both.
Figure 1.P Value of New Construction
Figure 1.Q New Units Built
$3.75M
$5M
$0
$2.5M
$1.25M
2012
2013
2014
2015
2016
2017
2018
2019
2020
Avg
15
20
0
10
5
New Units
2012
2013
2014
2015
2016
2017
2018
2019
2020
Avg
14
MUNICIPALITY OF THE DISTRICT OF ST. MARY'S | MUNICIPAL PLANNING STRATEGY
Operating Budget
The total generating operating revenue for 2017-
18 was $2.3 million. The District of St. Mary's is
self-financing, deriving most of their revenue from
own source revenue instruments.
As shown in Figure 1.R, revenue sources for St.
Mary's are comprised of:
»
1.8 million (79%) Net property taxes and
payments in lieu of taxes
»
0.2 million (8%) Unconditional transfers from
other governments
»
0.2 million (7%) Grants in lieu of taxes
»
0.1 million (6%) Other revenue from own
sources
Operating Expenses
The total generating operating expenses for
2017-18 was $2.3 million. As shown in Figure 1.S,
expenses for St. Mary's are comprised of:
»
0.7 million (31%) General government
services
»
0.6 million (25%) Environmental health
services
»
0.6 million (24%) Protective services
»
0.2 million (9%) Recreation and cultural
services
»
0.2 million (7%) Environmental development
services
»
0.1 million (4%) Transportation services
Opportunities and Challenges:
With almost 80% of the Municipality's revenue
coming from property taxes, continued declines
in population risk continued declines to revenue;
however, operating expenses will not necessarily
decline in proportion. To maintain existing
services it will be important to maintain or grow
the population.
The Municipality is running a balanced budget
but there is very little surplus to support an
unanticipated cost. If the Municipality could
increase their commercial base (which pays
higher taxes than residential rates), the
Municipality would have a greater buffer and
more jobs to attract more residents.
Figure 1.R 2018 Revenues
Figure 1.S 2018 Expenses
16
MUNICIPALITY OF THE DISTRICT OF ST. MARY'S | MUNICIPAL PLANNING STRATEGY
1.4.1 ENGAGEMENT STRATEGY
Planning within the Municipality has real-world
implications for citizens through governing where
individuals may build their homes, run their
businesses, and recreate. In order to ensure
that this MPS and associated LUB accurately
reflect the concerns and wishes of residents and
stakeholders in the community, engagement
strategies were adopted over several months
in order to gather as much participant input as
possible.
The consultants employed various techniques to
gather feedback including:
»
25 one-on-one interviews with business
and advocacy stakeholders provided by the
Municipality,
»
a dedicated planning website at
www.planstmarys.ca,
»
an online survey, which gathered more than
113 responses,
»
a social media strategy using Instagram and
Facebook,
»
a council working session,
»
a business stakeholders workshop,
»
a public workshop,
»
presentations of the draft reports, and
»
interviews with other government
stakeholders.
The Municipality's dedicated planning website
and Instagram and Facebook accounts were
used to advertise the planning process and the
online survey during the summer and fall of 2020
(during the COVID-19 pandemic), and provided
avenues for public to provide additional feedback.
The online survey was prepared in response to
the 2020 public health restrictions related to the
COVID-19 pandemic, and physical copies of
the survey were made available by request for
those without internet access. The survey was
structured to understand what residents and
businesses saw as the strengths and weaknesses
in St. Mary's, and the questions were structured
to be direct and open, as well as to provide a
space for individuals to inform the Municipality of
personal concerns or hopes for the future. The
Municipality spread word to the community about
the survey through social media as well as on the
municipal website and the local newsletter.
Further work on the project was put on hold
during the depths of the pandemic. When the
project was re-launched, Council released drafts
of this MPS and the associated LUB for public
review and hosted two rounds of Public Hearings
to hear public comments and make adjustments
to the documents before adopting them.
1.4 What We Heard
Above: Advertisement of
the public workshop held at
St. Mary's Recplex.
17
PART 1: INTRODUCTION | What We Heard
1.4.2 ONLINE SURVEY FEEDBACK
A total of 85 people responded to the online
survey over a 2 month period during the summer
of 2020. At 3.8% of the population (85 / 2233), the
sample size has a margin of error of 9%.
The survey revealed several key planning
concerns held by the majority of respondents
The top priority shared by the most people was
continued stewardship of the natural environment,
including coastal areas. Preserving St. Mary's
unique rural lifestyle was the second most-shared
concern. Many respondents additionally voiced
support for cultural facilities in the Municipality
and continuing to foster strong relationships with
family and friends. Natural resources and job
growth were also listed as secondary priorities.
Many individuals voiced their support of tourism
development and improved parks and recreation
infrastructure. Additionally, respondents shared
concern over the need to attract young people
and provide additional services to support full-
time residency.
It is important to note that 18% of responses
were from non-residents and 24% were from
part-time residents (cottage owners or temporary
residents). The responses from part-time and
full-time residents (82%) were analyzed separately
and as part of the total value to ensure the wishes
of individuals living permanently in St. Mary's
were prioritized.
Right: Presentation at the
public workshop held at the
St. Mary's Recplex.
Below: Group discussions
at the public workshop held
at the St. Mary's Recplex.
18
MUNICIPALITY OF THE DISTRICT OF ST. MARY'S | MUNICIPAL PLANNING STRATEGY
More varied housing choices
New commercial developments
Affordable housing
Expanded industrial development
Expanded open spaces and parks
Improved downtown in Sherbrooke
Better marketing and branding
0
10
20
30
40
50
low priority
medium priority
High priority
What should the municipality focus on?
What type of new development would you like to see in St. Mary's?
19
PART 1: INTRODUCTION | What We Heard
Resource extraction
secondary manufacturing or processing
Downtown revitalization
Home based businesses
Recreation Investment
Jobs and growth
Internet and utility services
Tourism development
Nature/resource conservation
0
1
2
3
4
5
6
7
8
Score
What should the municipality prioritize?
The key differences between the analysis of
residents versus non-residents include:
»
residents rated the overall quality of life in St.
Mary's as being higher,
»
non-residents more strongly agreed that
St. Mary's has a strong and clearly defined
identity,
»
non-residents more strongly agreed that
there is a need to broaden the tax base,
»
non-residents more strongly agreed that
people in St. Mary's are accepting of new
ideas,
»
residents showed stronger support for a
marine reserve,
»
residents gave a poorer rating to the
quality of recreational experiences, with the
exception of ATV trails,
»
non-residents more strongly prioritized
improving community services,
»
residents more strongly prioritized the
expansion of economic development
opportunities, resource extraction, and
secondary manufacturing,
»
non-residents more strongly supported new
commercial developments and affordable
housing,
»
residents more strongly supported
expanded open space and parks
The analysis of the two survey groups indicates
that there are discrepancies between the wishes
and needs of residents and non-residents, and it
will be up to the Municipality to work to reconcile
these differences and create a shared future that
is beneficial for all stakeholders while continuing
to provide strong support to residents.
20
MUNICIPALITY OF THE DISTRICT OF ST. MARY'S | MUNICIPAL PLANNING STRATEGY
1.4.3 INTERVIEW FEEDBACK
The consultants for this planning process also
conducted in-person and telephone interviews
with 25 individuals identified as key stakeholders
within the community.
The interviews indicated that many stakeholder
concerns aligned with those of the survey
respondents. Many interviewees expressed
the need to balance care of the natural
environment with economic development.
Natural resources, forestry, aquaculture, and
secondary manufacturing and processing
were common themes raised by interviewees.
Regarding community infrastructure, the majority
of stakeholders indicated their frustration with
the low-quality of available internet and cell
phone services. The need to upgrade roads
and improve safety was also raised by multiple
interviewees.
Many individuals shared concern regarding the
need to prevent outmigration from the Municipality
by young adults and families by focusing on
fostering sustainable, long-term economic growth.
Recurring ideas for developing the economy
included promoting tourism, heritage tourism and
recreation-focused ecotourism, supporting local
businesses and expanding currently available
services and conveniences, and supporting
sustainable forestry.
Several interviewees expressed a desire to
build off the caring and welcoming nature of the
community to develop a strong vision for what
the needs of the community are in the coming
years. The majority of individuals believe that the
Municipality is a wonderful place to live, and they
indicated the need to encourage citizens to work
together alongside the Municipality to improve the
quality of life for everyone.
Below: Presentation at the
public workshop held at the
St. Mary's Recplex.
21
PART 1: INTRODUCTION | What We Heard
1.4.4 WORKSHOP FEEDBACK
Two public engagement meetings were held
on August 19th, 2020 at the municipally-owned
RecPlex building. The meetings were advertised
in the Chronicle Herald and the Guysborough
Journal, as well as the local St. Mary's community
newsletter at least 2 weeks in advance. The
afternoon workshop was by invitation-only for
local business owners, and the evening meeting
was open to all interested members of the public.
Meeting participants were led through a series
of visioning exercises to address key planning
themes and issues within St. Mary's.
The workshop held exclusively for local business
owners led participants through a series of critical
thinking exercises to determine key planning
concerns and aims, and many of the issues
raised during the event were also reflected in
the survey results and stakeholder interviews.
Principally, business owners addressed the need
to encourage economic growth that is sustainable,
prosperous and that will contribute to support the
unique rural setting of St. Mary's.
The need to improve essential services and
communication infrastructure was also raised as a
strategy to improve the quality of life for residents
and simultaneously attract greater tourism interest
to the area. Many participants agreed that the
lack of amenities currently poses a significant
challenge to the development of year-round
tourism-based businesses. Participants also
voiced concern that resource extraction needs a
long-term vision that will prevent harm to citizens
or natural amenities such as the St. Mary's River.
Additionally, business owners expressed the desire
to allow the Municipality to rezone and support the
establishment of industrial developments.
Business owners strongly agreed that St. Mary's
has a unique culture and heritage that should be
celebrated through any future planning changes.
Some participants indicated the need to develop
a strategy to promote local identity and icons
outside of the Municipality to attract more interest
and investment.
The public workshop held in the afternoon was
structured in the same manner as the business-
owners workshop. An important topic raised
by every group was the need to conserve the
natural environment and protect the rural beauty
of St. Mary's. Most individuals agreed with the
need to protect the health of watersheds within
the Municipality. Some participants expressed
concern about the potential for resource extraction
to negatively impact the community. There was,
however; an interest in sustainable forestry as a
potential avenue of economic growth. Participants
identified the lack of reliable internet and cell
phone service as a principal barrier to economic
and demographic growth. Some individuals
also voiced the need for more financially and
physically-accessible housing, especially for at-risk
groups including seniors.
Most participants agreed that the Municipality
should focus on further developing tourism and
ecotourism. Specific measures mentioned under
this theme included support for the proposed
whale sanctuary, the desire to develop a dark
skies tourism program and the wish to see
the Municipality continuing to work with local
community groups and businesses to promote
more recreation-focused tourist amenities that
highlight the community's unique, rural lifestyle.
There was general consent that the Municipality
could benefit from beautification and visual
improvements. The participants also agreed that
the culture and heritage of St. Mary's is a valuable
asset for the community and local economy, and
some individuals argued for greater involvement
between the Municipality and Sherbrooke Village.
The workshop revealed a need for the Municipality
to work to provide greater support to small
businesses within the community. Participants also
expressed a wish to see a more cohesive marketing
strategy developed that would connect St. Mary's
to existing tourism promotion for the Eastern Shore.
Some participants also voiced the desire to foster
more openness between the municipal government
and residents of the Municipality.
PART 2
OUR SHARED
FUTURE
24
MUNICIPALITY OF THE DISTRICT OF ST. MARY'S | MUNICIPAL PLANNING STRATEGY
The Municipality of the District of St. Mary's is
committed to ensuring the long-term wellbeing of
its residents through developing community-wide
resiliency. The Municipality accepts the realities of
climate change as a significant potential threat to
the future health and prosperity of the community.
The Municipality embraces sustainability as a lens
to create an integrated and effective approach to
addressing this challenge.
Figure 2.A below illustrates the 'nested circle'
sustainability framework which reflects the
reality that human society is dependent on the
environment for survival since it provides us with
essential services such as drinking water, clean air,
and material resources. The framework also shows
that people in communities determine how goods
and services will be used and exchanged. This
model of conceptualizing sustainability supports
Council's belief that social and economic activity
occur within ecological limits.
This concept of sustainability contrasts with other
approaches that are based on the premise that
the social, ecological and economic aspects
are independent and all equally important. The
nested circle framework recognizes that social and
economic activity occurs within ecological limits.
The Municipality is also committed to being a
resilient community where 'disruptions' can be
managed effectively.
It will be important to adapt to change while
maintaining stability into the future. Community
stability allows for innovation and a path forward
whereby Council can take actions that reflect the
values of the community.
The sustainability framework is particularly useful
for St. Mary's, as the community is uniquely
positioned to steward the land and ensure
economic and social success by protecting the
natural environment and its many ecological
services.
2.1 Sustainability and Resiliency
Economy
Community
Environment
economy
health & well-being
land
governance & policy
energy
habitat
plants + animals
education & learning
materials
ecosystem
air
wealth
society & culture
water
Figure 2.A Core Concept: "Nested Circle" Sustainability Framework
25
PART 2: OUR SHARED FUTURE | Community Vision
a beautiful place that cares
for and takes pride in its
natural seƫng
thriving businesses and
plenƟful employment
opportuniƟes
rural living with plenƟful
amenities that meet everyone's
needs
a vibrant place that offers
lifelong opportuniƟes to live,
work and play
welcoming and supporting
neighbours that take care of
one another
Our Shared
Future Is...
The Municipality is an aspirational community
working towards a better future for all of its
residents, businesses, and visitors. "Our
Shared Future" is a vision for the Municipality's
desired outcome during the lifetime of this
MPS. The community vision is a statement
intended to capture St. Mary's desires for the
future. The vision was crafted after many weeks
of consultation with community leaders and
stakeholders. It provides the foundation from
which future planning efforts will develop.
The remainder of this MPS outlines the objectives
and policies the Municipality will use to realize
the vision statement. Achieving this will require a
consistent and thoughtful approach to land use
planning that has the community's future at its
core. The vision will serve as an aspirational call-
to-action for both the Municipality and residents
alike to work together in the coming years to
improve quality of life.
2.2 Community Vision
Figure 2.B Community Vision for the Future: 2022-2032
St. Mary's will capitalize on its rural and
coastal character, its natural beauty, its
bountiful natural resources and its proximity
to the province's densest urban centre. The
Municipality will be a place of prosperity,
inclusiveness, and resiliency. Residents will
continue to enjoy a unique, rural lifestyle
complimented by plentiful amenities for
working, living, learning and playing. Young
people will enjoy ample opportunities to
make a livelihood and raise children in local
communities. Local businesses will be
supported and celebrated, and community
services will be reliable, accessible, and high-
quality. There will be a strong commitment to
sustainability and economic development,
and natural areas and scenic landscapes will
be protected. The community will celebrate
and remember our coastal heritage.
26
MUNICIPALITY OF THE DISTRICT OF ST. MARY'S | MUNICIPAL PLANNING STRATEGY
2.1.1 KEY CONSIDERATIONS
This MPS is the guiding plan for future
development and investment in the District of
St. Mary's. It sets out how public investment and
targeted policies can spur private investment,
economic development, and expansion of the
private sector. The key considerations for this
plan include:
»
Ensuring that the serviced area of
Sherbrooke is ideally suited to density,
different housing forms, and continued
commercial expansion. Mixed uses and
multi-unit housing will be permitted and
encouraged in this area.
»
Providing regulations that are easy to
understand and administer.
»
Capitalizing on the pastoral qualities of rural
living to encourage population growth and
development.
»
Balancing the need for quality employment
and jobs with the sustainable use of the
plentiful and unique natural resources.
»
Enabling more affordable housing options
using inclusive planning principles to allow
new forms of housing on existing lots.
»
Working with other levels of government
to meet the objectives of residents and
business owners when considering projects
beyond municipal jurisdiction (e.g., fisheries,
mining, forestry.)
»
Expanding opportunities for tourism within
the District of St. Mary's.
»
Working with the provincial and
federal governments to improve rural
communication services and transportation
linkages (e.g., broadband internet, cellular
service, road conditions).
»
Improving marketing and place-branding
capacity.
»
Improving communication and engagement
with residents and businesses.
»
Working together to stabilize the population
and then work to grow it.
»
Recognizing and protecting the St. Mary's
River as a significant provincial ecological
feature and an opportunity for expanded
ecotourism.
»
Expanding opportunities for coastal tourism.
Community priorities are specific statements of
what the Municipality intends to do to achieve
the vision outlined in this MPS. They are the
WHAT and the HOW -- split into distinct priorities
with objectives and associated strategies
within each (see Part 3). Taken together, these
priorities provide a "road map" to achieving the
Community Vision. The priorities are guided by
the Municipality's commitment to sustainable
community development, resiliency, community
consultation, and evidence-based decision
making.
The policies of this MPS shall be consistent
with and supportive of these priorities. Council
acknowledges that priorities and/or specific
objectives must be monitored and may change
over time. Council is committed to tracking the
effectiveness of these policies and adapting
the objectives and policies as appropriate, as
this MPS is a living document. It is important to
acknowledge that some of these priorities will and
do compete with each other.
The challenge Council is tasked with will be to
find an appropriate balance amongst the different
priorities which is consistent with the community's
overarching aspirations and the opportunities that
present themselves for economic development
over time.
27
PART 2: OUR SHARED FUTURE | Community Vision
2.1.2 ISSUES & TRENDS
The significant community feedback and
stakeholder interviews throughout the planning
process identified several issues that will impact
the prosperity and livability of the Municipality
over the coming years. Recognition of these
issues and trends will be central in developing
policies to mitigate negative impacts while
realizing new potential opportunities.
Back to Growth
For at least the last four census periods, the
Municipality has seen a significant decline in
population. At the same time, the population
curve shows that the profile of age groups is
characterized by a larger proportion of older
residents and a significant shortage of young
families.
This means that there is declining demand for
housing, schools, and retail, and an increasing
demand for health services. It also means that the
Municipality should expect decreasing revenue
from property taxes but an increasing need for
expensive services.
For municipalities in this difficult position, it usually
leads to a lower quality of life for residents, and
a decrease in services, which creates a positive
feedback loop for more outmigration. This is a
complex situation that requires a focus on job
creation, new business creation, encouraging
immigration, partnering with higher levels of
government on strategic initiatives, and attracting
new industries.
The following policies are geared towards halting
population migration out of the Municipality and
growing the population over the next census
period.
POLICY 2-1 Attract new families
Council shall actively endorse new
opportunities to attract young families and
new population growth to the Municipality
through dedicated marketing campaigns, a
modernized website, improved signage and
wayfinding, a modernized Land Use By-Law,
recreational amenities and support for new
job creation initiatives.
POLICY 2-2 Enhance seniors' quality of life
Council shall, through its Community
Development and Recreation Department,
continue to support events for seniors to
promote physical and social activity and
improve their quality of life.
POLICY 2-3 Housing affordability and housing
variety
Council shall support new initiatives for new
affordable housing and for greater housing
diversity.
POLICY 2-4 Work with the Province to
increase immigration
Council shall work with the government
of Canada and Province of Nova Scotia to
attract new immigrant families to St. Mary's.
POLICY 2-5 Grow the second-home housing
market
Council shall, through marketing and land
use controls, support the promotion of
second-home housing espousing the benefits
of rural living in St. Mary's.
POLICY 2-6 Host citizen engagement forums
Council shall host citizen engagement
forums periodically to solicit ideas and
feedback from residents and businesses
for growing the Municipality by stabilizing
the current population over the next
census period (2021-2026) and growing the
population by 2% over the following census
period (2026-2031).
POLICY 2-7 Host high profile events
Council shall work to create unique high
profile events in the Municipality that will
attract visitors.
28
MUNICIPALITY OF THE DISTRICT OF ST. MARY'S | MUNICIPAL PLANNING STRATEGY
Economic Development
With lower than average employment and mean
family wages, the lack of job opportunities are
a factor in population decline, particularly with
young families. The Municipality needs to foster
economic development without compromising its
pristine natural environment. There will need to be
a careful balance of new economic development
and conservation, and the financial sustainability
of the Municipality hinges on finding the right
equilibrium.
New potential initiatives include the proposed
whale sanctuary, wind farms, mines and quarries,
agriculture, fisheries and aquaculture, coastal
resorts, marinas and ports, new industrial park,
provincial parks and reserves, and more.
A key hindrance for growth and economic
development has been internet access. Build
Nova Scotia is currently investing in significant
internet upgrades in the Municipality in their
Round 2 upgrades targeting communities like
Stillwater, Sherbrooke, Goldenville, Port Hilford,
Wine Harbour, Sonora, Liscomb, Spanish Ship
Bay, Liscomb Mills, Little Liscomb, Port Bickerton,
Harpellville, Holland Harbour, and Fisherman's
Harbour. New private satellite internet providers
launched in 2020 to provide high speed rural
bandwidth.
POLICY 2-8 Investigate feasibility of a
municipal industrial park
Council shall investigate the feasibility of
a new municipal industrial park and/or
commercial hub to encourage new jobs and
opportunities for working residents in St.
Mary's.
POLICY 2-9 New development land banking
Council shall seek opportunities to acquire
land in strategic growth areas for the
purpose of future development or public
uses.
POLICY 2-10 Support the proposed whale
sanctuary project
Council shall support in principal the
proposed whale sanctuary project pending
final environmental approvals.
POLICY 2-11 Support tourism and ecotourism
investment
Council shall work to support ecotourism
initiatives like walking trails, cycling trails,
tourism infrastructure, river restoration,
shoreline enhancements, and other
projects that support improved ecotourism
infrastructure.
POLICY 2-12 Create a signage and wayfinding
program
Council shall support the creation of
a signage and wayfinding plan for
development initiatives throughout the
Municipality.
POLICY 2-13 Modernize the municipal
website
Council shall modernize and update its
website to provide accurate and up-to-date
information for business development and
expansion purposes.
POLICY 2-14 Municipal marketing plan
Council shall develop a marketing plan to
encourage new second home markets, new
tourism markets and new business markets
for the Municipality.
POLICY 2-15 Work-from-home marketing
strategy
Council shall explore the creation of a work-
from-home marketing strategy as a potential
component of the municipal marketing plan.
POLICY 2-16 Collaborate with neighbouring
municipalities
Council may partner with neighbouring
municipalities on regional economic
development opportunities.
29
PART 2: OUR SHARED FUTURE | Community Vision
Figure 2.C Existing NSCC Campuses in NS; Guysborough County is a noticeable gap.
POLICY 2-17 Support high-speed internet
investment
Council shall work with Build Nova Scotia to
ensure the expansion of high speed internet
infrastructure in the Municipality and
work with internet providers for increased
bandwidth.
POLICY 2-18 Attract IT related businesses
Council shall encourage tech startup
organizations by exploring ways to establish
the required infrastructure for such growth.
POLICY 2-19 NSCC satellite campus
Council shall encourage NSCC to consider
the potential of a small NSCC satellite
campus in St. Mary's.
POLICY 2-20 Explore a dark sky initiative
Council shall investigate the potential of
creating a Dark Sky Reserve as part of
enhancing the tourism destination potential
of St. Mary's.
Affordable Housing
Housing affordability is becoming an issue in
urban and rural areas across Canada. In coastal
communities across Atlantic Canada, it is
important to preserve the rural way of life that may
be foreign to urban areas. These include allowing
boats and boat sheds in yards, limited industrial
uses relating to marine jobs, agricultural uses, etc.
Preserving the rural way of life is important to St.
Mary's residents.
POLICY 2-21 Affordable housing program
Council shall work with other provincial
departments and organizations to support
housing affordability in St. Mary's.
POLICY 2-22 Housing diversity
Council shall, through the policies of this
Plan, support a variety of housing types and
scales throughout the Municipality.
30
MUNICIPALITY OF THE DISTRICT OF ST. MARY'S | MUNICIPAL PLANNING STRATEGY
Sea Level Rise, Flooding, and Climate Change
The Municipality has not undertaken any sea
level rise (SLR) studies for its ports or harbours,
but other studies in Atlantic Canada suggest that
a combination of SLR and coastal subsidence,
could lead to 1-1.5 metres of SLR by 2100,
impacting many of the Municipality's coastal
areas. The increased frequency of storm events
will make the coastal areas much less safe and
could increase inland coastal flooding.
The Municipality's Climate Change Action
Plan sets out a series of climate change
adaptation and mitigation actions. They include
transportation and infrastructure, forest and land
management, and other nature-based solutions,
and are intended to be carried out based on
available funds, staff, and Municipal guidelines.
The impacts of climate change are also
economic. Residents in St. Mary's continue
to face increases in the cost of commodities,
including energy. Energy poverty has become a
challenge in St. Mary's, where many households
are spending more than 10% of their income on
energy services. This can force a household to
choose between paying energy bills, purchasing
medication, or putting food on the table.
POLICY 2-23 Floodplain mapping
Council may work with the Province of
Nova Scotia to prepare floodplain mapping
for potential flood-prone areas of the
Municipality and develop policy consistent
with the provisions of the Provincial
Statement of Interest on Flood Risk Areas.
POLICY 2-24 Climate change implementation
Council shall consider implementing action
items from the Municipal Climate Change
Action Plan for St. Mary's.
POLICY 2-25 Energy efficiency
Council shall ensure that existing and future
Municipal buildings are constructed to meet
the Provincial energy standards and targets.
POLICY 2-26 Wind farms and renewable
energy
Council shall look for opportunities for
renewable energy (e.g. wind or solar), either
by partnering with third parties or by
looking into the feasibility of a municipal
utility partnering with Nova Scotia Power.
POLICY 2-27 Work with NGOs
Council may work with non-governmental
organizations (NGOs) to support
environmental initiatives that address sea
level rise, flooding, and climate change.
Conservation of Natural Resources
The Municipality is endowed with an abundance
of coastal and inland resources including unique
geology, flora, and fauna. Mining, aquaculture,
and forestry offer opportunities for economic
growth, but must be undertaken without
jeopardizing other important natural resources
such as fish habitat and wetland areas.
Tourism is currently relatively untapped in the
Municipality, and could be instrumental in
preserving sensitive ecological areas while
improving economic development.
POLICY 2-28 Forest management plan
Council may work with NS Lands and
Forestry to prepare a forest management
plan for the St. Mary's River watershed.
POLICY 2-29 Fish populations and fish habitat
in the St. Mary's watershed
Council shall work with and support all
relevant agencies and organizations to
identify and implement best practices for
the conservation, protection, and restoration
of Atlantic salmon, brook trout, and their
habitat within the St Mary's watershed.
POLICY 2-30 Natural resource utilization
Council shall recognize the value of
sustainable resource management practices
within the municipality so long as the proper
environmental assessments support the
proposed developments.
31
PART 2: OUR SHARED FUTURE | Authority and Scope
This MPS and the associated LUB replace the
existing Municipal Planning Strategy and Land
Use By-Law adopted by Council in 2007. The
revised planning documents were produced
in accordance with the public review process
as outlined in the Municipal Government Act,
1998, c. 18, s. 204. The Municipal Government
Act gives Council the power to develop policies
regarding various issues regarding land use,
future development, municipal infrastructure,
public programs, public lands and other
municipal concerns relating to economic, social
and physical development.
This Municipal Planning Strategy provides policy
statements to establish basic requirements for
future planning and development within the
Municipality. These policies are designed to
provide a framework to steer the community in its
efforts to improve the quality of life in St. Mary's
and outline specific concerns and opportunities.
The policies are aligned with both the Statements
of Provincial Interest and the regional interests
outlined in Part 1. Part 4 of this MPS outlines the
implementation and review process as required
by the Municipal Government Act.
The Land Use By-Law is the document that
establishes specific planning regulations enforced
by the Municipality. The development of the
Land Use By-Law was guided by the planning
requirements established in the Municipal
Government Act. The Land Use By-Law is
adopted as a necessary measure to carry out the
objectives outlined in this MPS.
POLICY 2-31 Adopt the MPS and LUB
Council shall adopt the Municipal Planning
Strategy and the Land Use By-Law. Both
documents will apply to the entirety of the
Municipality of the District of St. Mary's.
2.3 Authority and Scope
This planning strategy
is how we,
as human beings,
organize ourselves...
...It's how we physically
embody our values
in the built environment.
33
PART 2: OUR SHARED FUTURE | Provincial + Regional Considerations
2.3.1 PROVINCIAL COORDINATION
A Municipal Planning Strategy provides the policy
framework for land use and development control.
The Municipal Government Act (MGA) provides
Council with the power to make statements of
policy with respect to a broad range of activities
including future development, land use, public
lands, transportation, municipal services,
municipal development, coordination of public
programs, and any other matters related to the
physical, social or economic development of the
town. Section VIII of the MGA addresses planning
and development, and Section IX addresses
subdivision of land.
Alongside the MGA, the Province includes
Statements of Provincial Interest to ensure
municipalities are complying with issues of
province-wide significance. All NS municipalities
must take the statements into account when
creating or reviewing land use planning policies
and regulations.
1. Drinking Water
Goal: To protect the quality of drinking water
within municipal water supply watersheds.
St. Mary's is comprised of five major watersheds
including the Country Harbour watershed, the
South/West Watershed, the St. Mary's Watershed,
the Liscomb Watershed and the Sheet Harbour
Watershed. Most properties in the Municipality get
their potable water from wells, with the exception of
the Sherbrooke municipal water boundary which
gets its water from Sherbrooke Lake through a chain
of five lakes. The Municipality's only water treatment
plant can provide up to 109,000 US gallons per
day and there has not been any reported issues
of poor water quality or quantity. Ensuring the
water quality of Sherbrooke Lake is important, as
well as the quality and quantity of groundwater in
the Municipality for non-serviced residents and
businesses.
Applicable MPS Policies:
Policy 3-12, 3-13, 3-14, 3-15, 3-16,
2.4 Provincial + Regional Considerations
Sanctuary Rd
374
224
348
347
276
316
211
7
e Rd
COUNTRY HARBOUR
SOUTH/WEST
ST. MARY'S
LISCOMB
EAST/WEST (SHEET HBR)
Caledonia
Aspen
Goshen
Cross Roads
Country Harbour
Sherbrooke
Ecum Secum
Port
Bickerton
Moser River
HRM
MD Guysborough
MC
Colchester
Sheet Harbour
Mushaboom
Figure 2.D St Mary's Watersheds
34
MUNICIPALITY OF THE DISTRICT OF ST. MARY'S | MUNICIPAL PLANNING STRATEGY
2. Flood-Risk Areas
Goal: To protect public safety and property and
to reduce the requirement for flood control works
and flood damage restoration in floodplains.
Unlike other flatter areas in the province that are
prone to frequent flooding, the varied topography
in St. Mary's leads to flooding being concentrated
along the main river branches and in coastal
lowlands. The Municipality has not undertaken
any floodplain mapping in the past, but is
interested in partnering with the Province on
mapping of the St. Mary's River watershed. The
Municipality has identified several flood potential
hazard areas as part of its Municipal Climate
Change Action Plan including pluvial flooding,
fluvial flooding, and coastal flooding.
Applicable MPS Policies:
Policy 2-23, 3-28, 3-67, 3-69
3. Agricultural Land
Goal: To protect agricultural land for the
development of a viable and sustainable
agriculture and food industry.
The coastal microclimate, soil conditions and
remoteness of the Municipality are not as
conducive to agriculture as other more fertile
parts of the province but there are a few large
dairy farms in the Municipality. Appendix 'B'
includes identification of Class 2, 3, and 4 soils
in the municipality, while the Agriculture Zone
promotes agriculture in these areas.
Applicable MPS Policies:
Policy 3-53, 3-54, 3-55, 3-56, 3-57
Figure 2.E St Mary's Soil Series
Gibraltar - Unsuitable for Agriculture
Liverpool - Unsuitable for arable Agriculture
Aspotogan - Unsuitable for Agriculture
Wolfville - Infertility, Dense subsoil
Rockland - Shallowness, stoniness
Organic - Very little cultivation
35
PART 2: OUR SHARED FUTURE | Provincial + Regional Considerations
4. Infrastructure
Goal: To make efficient use of municipal water
supply and municipal wastewater disposal
systems.
Sherbrooke is the only centrally serviced (water,
stormwater and waste water) district in St. Mary's
and there are no current plans for additional
central water or wastewater services. The
wastewater plant (an extended aeration package
plant) can accommodate flows of up to 80,000
US gallons per day and there is ample capacity
for new development. There are four lift stations
and there are no cross connections with storm
and wastewater. The water treatment plant can
provide up to 109,000 US gallons per day, and
there have been no drought impacts and no
known shortfalls in the water supply.
As the only serviced area in the Municipality,
density is well suited to this area, in the walkable
vicinity of the downtown, school, Municipal Office,
retail and Sherbrooke Village.
Applicable MPS Policies:
Policy 3-1, 3-2, 3-4, 3-11, 3-12, 3-13
Figure 2.F Sherbrooke Water and Sewer Services
5. Housing
Goal: To provide housing opportunities to meet
the needs of all Nova Scotians.
As the least dense municipality in Nova Scotia,
St. Mary's could make significant strides in
increasing density if the land use policies
encouraged it and the market could support it.
The Municipality supports higher densities in the
serviced area, and in the unserviced area, it will
support smaller lot sizes, affordable accessory
housing options and reduced yard requirements
that encourage a range of housing types. The
Municipality is also supportive of affordable
housing, special-needs housing and rental
accommodations.
Applicable MPS Policies:
Policy 2-3, 2-21, 2-22, 3-38, 3-39, 3-40, 3-41,
3-43, 3-44, 3-45
36
MUNICIPALITY OF THE DISTRICT OF ST. MARY'S | MUNICIPAL PLANNING STRATEGY
2.3.2 REGIONAL COORDINATION
In order to align this MPS with regional interests,
background research was conducted to
determine the key issues on the Eastern Shore.
The One Nova Scotia report by the Nova Scotia
Commission on Building Our New Economy
outlines the need to address the economic
hardship and demographic decline in rural
communities. In order to begin to solve these
problems, communities must work together to
create resilient economies that support small
business owners and encourage a spirit of
entrepreneurship. Creating a stronger economy
will encourage new residents to settle in rural
areas such as St. Mary's which will, in turn, further
fuel economic growth. Thus, the two issues
are related and can be considered under the
umbrella term of "community prosperity".
Environmental issues are also of prominent
concern in the Eastern Shore region. Specific
concerns raised by community members and
non-profit stakeholders centred around protection
and restoration of the St. Mary's River. The River
is an asset for the community that requires careful
stewardship. Protection of coastal regions was
also raised by stakeholders and is reflected in
the financial partnership with the federal Coastal
Restoration Fund to protect coastal and marine
resources.
Land Use is a recurring theme throughout
discussions with regional partners and
neighbouring municipalities. There is a definite
need to create clear land use regulations to
protect community interests and control future
development.
In order to successfully address the different
regional concerns, the Municipality of St.
Mary's will need to partner with neighbouring
municipalities to ensure an effective and
coordinated response.
Guysborough Municipality Coordination:
The Municipality of the District of Guysborough
(MODG), neighbouring to the east, provides
planning and Development Officer services
to St. Mary's so they are keen to streamline
and coordinate planning and development
amongst the municipal units. The MODG raised
issues with controlling shipping container
accessory buildings, multiple RVs on a single
lot, and coordinating resource extraction
and environmental controls. MODG's coastal
community zones allow up to 7500 sq.ft of
commercial or industrial to accommodate the
fishery. Since MODG planners and development
officers oversee the implementation of the St.
Mary's planning documents, it makes sense to
coordinate the documents as much as possible
for better efficiencies in delivery.
Pictou Municipality Coordination:
The consulting team spoke with CAO for
Municipality of the County of Pictou (Brian Cullen)
about neighbouring concerns or opportunities.
The Municipality operates 6 small 50 kW wind
turbines outside Stellarton. Solid waste in the
Municipality is handled through Pictou County
Shared Services Authority where solid waste
is shipped to Guysborough and recyclables
are shipped to Colchester County. The only
overlapping services is the Fire Department
in East River which services a small portion of
northern St. Mary's. There have been no issues
relating to planning or servicing on the border of
the two counties which should be addressed in
the new MPS and LUB.
37
PART 2: OUR SHARED FUTURE | Provincial + Regional Considerations
HRM Municipality Coordination:
The Halifax Regional Municipality (HRM),
neighbours St. Mary's to the west. Much of the
shared border is undeveloped and difficult to
access. However, the community of Ecum Secum
sits along the border.
The consulting team met with Leah Perrin and
Kathleen Fralic on HRM's Regional Policy team
to discuss shared planning issues. They noted
that the extremely remote nature of the shared
border minimizes the extent of development and
its potential for impact. However, they did identify
the Halifax Green Network Plan as an important
policy document for HRM, and pointed out
that natural systems do not conform to political
boundaries. Any planning decisions in St. Mary's
should be respectful of shared natural systems,
such as watersheds and wildlife corridors.
Antigonish Municipality Coordination:
St. Mary's shares a small portion of its northern
border with the Municipality of the County of
Antigonish. The consulting team reached out
formally to the Municipality of the County of
Antigonish by letter to the CAO, Glenn Horne
and received no formal response. However, the
consulting team was concurrently involved with a
review of the Antigonish planning documents and
through that process was able to determine that
there are no shared planning issues of concern.
38
MUNICIPALITY OF THE DISTRICT OF ST. MARY'S | MUNICIPAL PLANNING STRATEGY
PART 3
COMMUNITY
PRIORITIES
40
MUNICIPALITY OF THE DISTRICT OF ST. MARY'S | MUNICIPAL PLANNING STRATEGY
3.1 Planning Context
St. Mary's is a unique community unlike any other
rural municipality in Nova Scotia. The community is
defined by its abundant wilderness areas, heritage,
and welcoming and supportive neighbours.
Looking towards the future, Council is dedicated
to preserving the special rural lifestyle while also
improving everyday quality of living for residents.
In order to move the community forward, the
Municipality must proactively plan for future
challenges and opportunities while also embracing
change as a positive force for bettering the
Municipality. St. Mary's aspires to lead by example
by developing thoughtful, practical planning
regulations that prioritize the prosperity of the
community and sustainable development for
generations to come.
The Municipality recognizes that previous planning
challenges stemmed from land use policies that
did not always reflect the lived experience of
residents and visitors. This MPS and Land Use
By-Law specifically set about correcting these
issues by adopting a straightforward community-
based planning approach founded on the feedback
of community stakeholders. The Municipality is
committed to continuing the engagement process
throughout the life of this MPS and Land Use By-
Law to ensure the implementation of the community
priorities continues to reflect the needs and wishes
of citizens.
St. Mary's wishes to become a leader amongst
rural municipalities to promote its strong community
values and high quality of life with new residents
and visitors. The Municipality will work in the coming
years to promote a strong image of the community
as a welcoming, inclusive, and prosperous place
guided by its unique heritage and focused on
creating a bright future for all its citizens.
41
PART 3: COMMUNITY PRIORITIES | Overview of Approach
3.2 Overview of Approach
The following pages provide detailed strategies
and policies that will guide Council in its planning
efforts to realize the community vision and achieve
improvements in the quality of life for residents
and businesses. Each community priority is
introduced through an exploration of the context of
each issue as well as the strategic areas that must
be addressed to realize meaningful, long-term
change.
This chapter is organized to address:
»
Public Lands and Services (roads,
government owned lands,parks and
recreation, main streets, services, renewable
energy, etc.)
»
Private Lands and Services (residential,
commercial, industrial, agriculture, etc.)
»
Broader Municipal issues like climate
change.
Policies in this chapter are either regulatory or
strategic. Regulatory policies establish basic
land use regulations and restrictions that ensure
the safety and prosperity of the community, and
these policies are reflected in the Land Use By-
Law. Strategic policies apply to the Municipality's
internal efforts to improve the delivery of services
to its citizens, and these policies outline ways in
which Council can improve municipal operations
during the lifetime of this Municipal Planning
Strategy.
Some of the benefits of a rural municipality
compared to urban municipalities is the
affordability, direct access to nature, the
abundance of natural resources, the rural lifestyle,
and the potential for reduced development
complexity and red tape. On this later point, it
becomes more important to provide clarity and
certainty in the Land Use By-Law since rural
municipalities don't have the capacity for the
same level of oversight as urban municipalities.
Beyond the requirements of this MPS and Land
Use By-Law, developments still need to meet
provincial standards for sub-division, for potable
water quality and quantity, for sanitary water
treatment, for wetland and watercourse protection,
for coastal area protection, for flood mitigation,
for building codes, and for natural resource
extraction. So there is another higher level of land
use controls which need to be considered from
higher levels of government.
These documents have been coordinated with
higher level land use controls to provide greater
clarity, but residents should understand that
the Province still has a great deal of control,
especially as it relates to mineral extraction,
natural resource use, and water uses. That said,
the Municipality has the capacity to manage
many aspects of public and private land uses
in the Municipality and to establish a vision and
pathway for growth and prosperity.
42
MUNICIPALITY OF THE DISTRICT OF ST. MARY'S | MUNICIPAL PLANNING STRATEGY
3.3 Public Lands and Services
The Municipality manages and, in some cases
owns, a range of public resources from roads and
treatment plants to libraries and public offices. The
Municipality also coordinates with other provincial
and federal jurisdictions who oversee other public
resources and lands in the Municipality.
Some aspects of road development are controlled
at the time of subdivision through the Subdivision
By-law. Currently, the Municipality has adopted the
Provincial Subdivision Regulations as its Subdivision
By-law, and is subject to the regulations for roads
contained within those Regulations. However, Council
may choose to adopt a stand-alone Subdivision
By-law in the future, at which time certain aspects of
road development would be further regulated.
3.3.1 INFRASTRUCTURE AND
TRANSPORTATION
Most of the roads in the Municipality are owned and
managed by the NS Department of Public Works
(NSPW). These include several road classifications
designed to support the weight of different vehicle
classes, which range from standard vehicles up
to large B-train trucks. "K" class roads do not
receive any maintenance and "J" class roads are
maintained by the Province. Maintaining these
roads (snow and ice removal, and repair) is a major
cost for the Province. As part of the municipal
service exchange, St. Mary's is responsible for the
maintenance of about five kilometres of public "J"
class roads in Sherbrooke. The Municipality pays a
fee to the Province for maintenance of these roads
but repairs and upgrades are the Municipality's
responsibility, with the possibility of 50/50 cost
sharing between the Municipality and higher levels
of government.
In order to subdivide and develop land in the
Municipality, land owners must have adequate
road frontage as specified in the Land Use By-
Law. If a road does not already exist, developers
must build roads to meet NSPW standards at
their own expense. Before 1995, new roads
were handed over to the Province to maintain.
Following 1995, new roads are the jurisdiction of
the Municipality, and their long-term maintenance
creates long-term costs.
The more road frontage that is required for
development, the longer the roads must be built
and the more expensive they are to maintain
once they are handed over to the Municipality.
Compact development is the most economical and
environmentally sustainable form of development,
and Council wishes to enable such development.
B Train (62,500 kg)
Maximum Weight (62,500 kg)
Intermediate Weight (49,500 kg)
All other highways (41,500 kg)
Figure 3.G Public Roads in St. Mary's
43
PART 3: COMMUNITY PRIORITIES | Public Lands and Services
POLICY 3-1 Reduced road frontage
Council shall, through the Land Use By-Law,
establish lot standards with lower minimum
frontage requirements than is historically
typical within the Municipality.
POLICY 3-2 Road reserves
Council shall, when establishing a municipal
Subdivision By-law, require lands to be set
aside as "road reserves" to connect new streets
to adjacent lands that have the potential to be
subdivided and developed with future streets.
POLICY 3-3 Meet with NSPW
Council may hold regular meetings with NSPW
(or its future designate) to address maintenance
and road upgrades in the Municipality.
3.3.2 PRIVATE ROADS
Private roads in St Mary's are sometimes built to
access forestry, resource extraction or cottage/
residential developments. Private roads are
maintained by land owners and as such do not
represent a cost to the Municipality. However, they
can cause conflicts where resource uses overlap
with residential uses, or where landowners have
differing expectations for maintenance.
POLICY 3-4 Private roads
Council shall, when establishing a municipal
Subdivision By-law, require private roads to be
created on their own, separate, lots.
POLICY 3-5 Private to public roads
Council may consider the transfer of private
roads to municipal public roads if the
economic benefit of taking over the road
outweighs the public cost of maintaining it.
3.3.3 MAIN STREETS
St. Mary's has two "main street" communities at
Sherbrooke and Port Bickerton. These main streets
are characterized by increased residential density;
some commercial uses; and institutional facilities
like schools, churches, and community centres.
Sherbrooke Main Street
Sherbrooke already has a Streetscape
Plan document, which includes various
recommendations to make the street more walkable;
make the street safer for vehicles, pedestrians,
and cyclists; and to realize new park opportunities.
The Streetscape Plan includes new sidewalks
linking Court Street (Sherbrooke Village) to the
Trunk 7 intersection, new paved shoulders from the
Trunk 7 and Main Street intersection to Old Road
Hill, and intersection upgrades to Old Road Hill
(a roundabout or a new T-Intersection). The Main
Street segment (Trunk 7 intersection to Court Street),
could be widened to allow for on-street parking on
one or both sides and sidewalk on both sides.
POLICY 3-6 Sherbrooke Streetscape Plan
Council shall implement the Sherbrooke
Streetscape Plan as funding becomes available
for its phased implementation.
POLICY 3-7 Dark sky lighting
Council may consider dark-sky compliant
lighting for future lighting plans within the
Sherbrooke Streetscape improvements.
Port Bickerton Main Street
Port Bickerton is a scenic community with
enough density and businesses/institutions to
consider a main street plan for future streetscape
upgrades. Such a project, if implemented, would
increase the tourism potential of the region and
the quality of the community for residents. Such
a streetscape plan should address streetscape
improvements from Harbourview Drive to the
Coast Guard Wharf and should also investigate
the feasibility of a facade enhancement program.
POLICY 3-8 Port Bickerton main street plan
Council may consider creating a streetscape
plan for Port Bickerton. The plan should
include consideration of road improvements,
sidewalk improvements, AT lanes, trail
connections, signage and wayfinding, and a
facade improvement program.
44
MUNICIPALITY OF THE DISTRICT OF ST. MARY'S | MUNICIPAL PLANNING STRATEGY
1. W
Port Bickerton Village Road &
Harbour View Dr.
Sherbrooke Main Street &
HWY 7
45
PART 3: COMMUNITY PRIORITIES | Public Lands and Services
Figure 3.H Bicycle routes in Nova Scotia. Source: Bicycle Nova Scotia
3.3.4 ACTIVE TRANSPORTATION
Many municipalities in Nova Scotia are actively
investing in active transportation (AT = human
powered transportation including walking,
running, bicycling, kayaking, canoing, skiing,
snowshoeing, wheelchairing, etc.). AT projects
improve the mental and physical health of local
communities while reducing reliance on vehicles
to provide improved mobility options.
Cycling in Nova Scotia has become a major
tourist attraction especially in scenic coastal
locations like the Cabot Trail and the Annapolis
Trails but there is a noticeable absence of AT
infrastructure in St. Mary's. Bicycle Nova Scotia
has only identified the 39.5 km Sherbrooke Loop
as the one route in St. Mary's.
To be successful, AT routes require investment
in safe infrastructure including paved road
shoulders, multi-use trails, or wide highway lanes,
as well as roadside pull-offs and rest areas, water
fountains and washrooms, scenic destinations,
and food services.
POLICY 3-9 AT Plan for the Municipality
Council shall consider expanding the
existing Sherbrooke AT Plan to encompass
other areas of the Municipality.
POLICY 3-10 Bike friendly routes
Council shall encourage NSPW, Tourism
NS, and Bicycle Nova Scotia to implement
new bicycle friendly routes in St. Mary's,
especially in scenic coastal areas.
46
MUNICIPALITY OF THE DISTRICT OF ST. MARY'S | MUNICIPAL PLANNING STRATEGY
3.3.5 CENTRAL SERVICES
St. Mary's only has one centrally-serviced
community (Sherbrooke) and the services include
sanitary sewer, water, and stormwater. The current
sewage treatment plant and water treatment plant
in Sherbrooke have ample capacity to service the
community and extra capacity for some additional
developments. The St. Mary's River Smokehouse
facility, which was a large user of water and
sewer, recently closed, freeing up additional
capacity for a small expansion or for some multi-
unit residential developments.
There was a plebiscite done in Port Bickerton
in the 1990's to build central services but the
community voted it down due to proposed tax
increases.
The advantage of central services is that the
community can increase density, and for the most
part, central services are safer and more reliable
than on-site systems and wells. However, they are
a significant longterm investment for a community
that must be repaid through taxes or user fees.
POLICY 3-11 Support density in serviced areas
Council shall, through the Land Use By-
Law, encourage density in Sherbrooke to
maximize the use of existing central services.
POLICY 3-12 Connect to sewer
Council shall, through the Land Use By-Law,
require any new developments in the area
with central services to connect to sewer.
POLICY 3-13 New central service areas
Council may consider new central service
facilities in communities if a business case
can demonstrate that the economic, social,
and/or environmental benefits outweigh the
ongoing cost of maintenance and capital
upgrades.
3.3.6 SOURCE WATER PROTECTION
Sherbrooke's municipal drinking water supply is
drawn from a series of nine lakes, which make
up the Sherbrooke Lake Watershed, with water
ultimately drawn from an inlet on Sherbrooke
Lake. In the mid-2000s the Municipality
undertook a Source Water Protection plan to
identify the risks to the municipal water supply
and establish approaches to limiting these risks.
Recommendations within the Source Water
Protection Plan include establishing zoning
restrictions on the watershed.
POLICY 3-14 Drinking Water Designation
Council shall, on the Future Land Use Map
of this Plan, establish a Drinking Water
Designation on the lands identified within
the Sherbrooke Source Water Protection
Plan. The only permitted zone within the
Drinking Water Designation shall be the
Drinking Water Zone
POLICY 3-15 Drinking Water Zone
Council shall, in the Land Use By-Law,
establish the Drinking Water Zone, intended
to limit the density and types of development
within the Sherbrooke Lake Watershed to
those that are low risk to the quality of the
municipal drinking water supply.
POLICY 3-16 Re-zoning in the Drinking Water
Designation
Lands within the Drinking Water
Designation shall not be re-zoned without an
amendment to this Plan.
47
PART 3: COMMUNITY PRIORITIES | Public Lands and Services
3.3.7 WASTE MANAGEMENT
The St. Mary's Transfer Station is owned and
operated by the Municipality of the District
of St. Mary's as part of Eastern Region Solid
Waste Management. The facility transfers solid
waste and organics to the Guysborough Waste
Management Facility, which is the second largest
in Nova Scotia.
POLICY 3-17 Waste transfer improvements
Council shall work to improve the efficiency
of municipal waste management to ensure
greater sustainability and economic
opportunities.
3.3.8 RENEWABLE ENERGY
In October of 2019, the Province of Nova Scotia
passed the Sustainable Development Goals
Act, which required the province to reduce
greenhouse gas emissions by 53 per cent
below 2005 levels by 2030, and reach net-zero
emissions by 2050.
St. Mary's has little tidal, solar, or hydro potential
but it does have potential for wind and solar
energy projects. Nova Scotia has 78 wind
projects (309 wind turbines) that provide a
generation capacity of 616 MW (December,
2019). Many wind farms across Nova Scotia are
owned by Independent Power Producers with
contracts to sell their electricity back to NS Power.
Wind Energy
St. Mary's currently (2022) has no wind energy
facilities but there is good potential for future
development so long as the energy can be stored
and transferred to the electrical grid efficiently.
To ensure compatibility of future turbines with
existing communities, the Municipality has
identified two scales of turbine developments:
»
"Utility or Large Scale" wind turbines are
machines in excess of 60 metres in height,
being the measurement from the base of
the tower to the highest point of the blade's
arc, and/or have the potential to generate
100 kilowatts or more. Council will consider
throughout the Municipality proposals
for wind turbines or wind farms on a site-
specific basis and consider permitting
large turbines each on its merits and in
consideration of the mitigation of potential
adverse impacts.
»
"Small Scale" wind turbines are less than
60 meters in height and generate less than
100 kilowatts. They are intended to meet
the electricity needs of on-site uses, but
may export energy to the grid through "net-
metering".
POLICY 3-18 Small scale wind turbines
Council shall, through the Land Use By-Law,
broadly permit small scale wind turbines,
subject to specific separation distance and
signage requirements intended to minimize
impacts on adjacent uses.
POLICY 3-19 Wind turbines by development
agreement
Council shall consider entering into a
development agreement to permit large scale
wind turbines in the Industrial Zone and the
Rural Resource Zone, subject to Policy 3-20
and the implementing Policy 4-12 and 4-13.
POLICY 3-20 Environmental impact for large
scale wind turbines
Council shall require an environmental
impact registration document for all
proposed large scale wind turbines following
the most recent provincial guidelines.
48
MUNICIPALITY OF THE DISTRICT OF ST. MARY'S | MUNICIPAL PLANNING STRATEGY
Solar Energy
Solar farms and individual home solar panels are
gaining widespread adoption through improved
battery and solar panel technologies. Though
St. Mary's is not ideally suited for large scale
solar installations near its coastal areas, the
large undeveloped inland areas and the high
proportion of detached dwellings (each with
their own roof) make St. Mary's a welcoming
landscape for solar projects large and small.
POLICY 3-21 Solar collectors
Council shall, through the Land Use By-Law,
permit small-scale solar collectors as an
accessory use in all zones.
POLICY 3-22 Solar farms
Council shall, through the Land Use By-Law,
permit solar collector arrays that exceed
1 megawatt of nameplate capacity ("solar
farms") in the Industrial Zone and the Rural
Resource Zone.
3.3.9 PARKS AND RECREATION
Parks and public recreation facilities improve
the quality of life and the mental and physical
health of residents in St. Mary's. These facilities
reduce the strain on public health facilities and
are important factors in attracting new residents,
businesses, and tourists to the Municipality. Parks
can be instrumental in relating the cultural history
of an area or to educate people on the natural
history of the area.
Parks can range from municipal parks and
conservation areas and playgrounds up to
provincial and national parks.
POLICY 3-23 Parks and Recreation Zone
Council shall, through the Land Use By-Law,
establish the Parks and Recreation (PR) Zone
to identify parkland and permit a range of
parks and open space uses.
Municipal Parks
St. Mary's has assembled a wide range of
lands (almost 17 acres) for parkland areas
in the Municipality. There is currently no
parkland dedication requirements because the
Municipality utilizes the Provincial Subdivision
Regulations as its Subdivision By-Law. However,
if the Municipality established a stand-alone
Subdivision By-law in the future Council intends
to require a parkland dedication as part of the
subdivision process.
POLICY 3-24 Parks and recreation master
plan
Council may complete a Community
Development and Recreation master plan
for the Municipality to guide the future
development of parks and recreation
facilities.
POLICY 3-25 Passive parks in all zones
Council shall, through the Land Use By-Law,
permit passive parks and recreation uses in
all zones.
POLICY 3-26 Parkland dedication
Council shall, when establishing a municipal
Subdivision By-law, require a parkland
dedication of cash or in-kind improvements
to municipal parkland equalling at least
5% of the value of the created lots. Council
may, through the Subdivision By-law, exempt
classes of subdivision from municipal
parkland dedication. Such exemptions may
include, but are not limited to, boundary
adjustments, consolidations, subdivisions for
municipal purposes, utility subdivisions, and
subdivisions creating a total of four or fewer
lots from an area of land.
49
PART 3: COMMUNITY PRIORITIES | Public Lands and Services
Wilderness Area
Nature Reserve
Proposed Protected Area
Proposed Provincial Park
Proposed Protected River Corridor
Proposed Nature Reserve
Figure 3.I Provincial Parks and Protected Areas
Provincial Parks
The Province operates and maintains three
provincial day use parks in the Municipality
including the Marie Joseph Roadside Park near
Liscomb Mills (1.86 acres), the Sherbrooke
Picnic park near Sherbrooke Village (0.76 acres),
and the Lochiel Lake Picnic park (10.3 ac) near
Aspen. There are no camping parks in St. Mary's
though there are two private campgrounds
(Riversedge and Nimrods campgrounds).
Provincial Parks and Protected Area
The Province of Nova Scotia has set a target for
20% of the provincial land area to be designated
as provincial parks and protected areas. The
provincial report, Our Parks and Protected Areas:
A Plan for Nova Scotia, aims to protect up to
249,000 hectares, a land mass about one-quarter
the size of Cape Breton Island.
POLICY 3-27 Existing provincial parks in St.
Mary's
Council shall encourage the Province
to maintain and promote the existing
provincial parks within St. Mary's.
POLICY 3-28 St. Mary's River Corridor
Council shall encourage the Province in
designating the remaining proposed St.
Mary's River Corridor Lands as a protected
area, to add to the lands already protected as
St. Mary's River Provincial Park..
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MUNICIPALITY OF THE DISTRICT OF ST. MARY'S | MUNICIPAL PLANNING STRATEGY
POLICY 3-29 New provincial parks
Council shall encourage the Province to
establish and invest in infrastructure for new
provincial parks within the Municipality,
including the proposed:
1. Liscomb Point Provincial Park (465 ha),
2. Port Bickerton Provincial Park (337 Ha),
3. Judds Pools Provincial Park (77 Ha), and
4. Sherbrooke Lake Provincial Park (60Ha).
Sherbrooke Village
Sherbrooke Village is part of the Nova Scotia
Provincial Museum network and is managed by
the Historic Sherbrooke Village Development
Society (HSVDS). The Village was built on the
economy of ship building, lumbering, and gold
mining during its industrial boom in of the 1860s.
The Village consists of 80 buildings. Over 25
of those are open to the public, dating from the
1860s through to pre-WWI. The Village is open
seasonally, as well as for special events in the off-
season. Sherbrooke Village is the most significant
tourist destination in the Municipality.
The Village is serviced by sewer and water
and each building sits on its own premises
identification number (PID). In 2020, Sherbrooke
Village underwent a $1m restoration which
included work on several of its buildings.
POLICY 3-30 Local Nova Scotia Museums
Council may meet with representatives of
The Nova Scotia Museum annually to review
plans for local museums.
Federal Parks
There are no federal parks or historic sites in the
Municipality. However, the federal government is
currently proposing a Marine Protected Area (MPA)
in the waters off the coast of St. Mary's. There are
currently 14 Oceans Act MPAs across Canada,
comprising over 350,000 square kilometres.
Eight are located on the Atlantic Coast, ranging
in size from 2 square kilometres to 11,580 square
kilometres. Any proposed MPA would not be
subject to municipal plans or by-laws.
Canadian Heritage Rivers
The Government of Canada has developed
a national river conservation plan that has
designated 40 Canadian Rivers--including the
Margaree and Shelburne rivers in Nova Scotia
and the Hillsborough and Three Rivers in PEI--
as national heritage rivers. These rivers are
recognized nationally for their outstanding natural,
cultural, and recreational heritage and for shaping
Canada's identity is as a nation. There are
many benefits to joining the Canadian Heritage
Rivers Program. The St. Mary's River could be
an excellent candidate for this designation, with
improved resources for conservation, access
to a national network of resources, and greater
opportunities for ecotourism.
POLICY 3-31 Canadian Heritage Rivers
designation
Council shall be supportive of any
application for the designation of the St.
Mary's River as a Canadian Heritage River.
3.3.10 PUBLIC RECREATION FACILITIES
Rinks, gymnasiums and pools are important
recreational amenities in municipalities and
they contribute to the social and mental health
of residents. Ideally these facilities are located
close to the people that use them with good road
and trail access. The Municipality is fortunate to
have the RecPlex, which is home to community
hockey, a curling club, public skating and various
community events all year round.
POLICY 3-32 Recreation centres
Council shall, through the Land Use By-Law,
permit recreation centres in all zones except
the Drinking Water Zone.
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PART 3: COMMUNITY PRIORITIES | Public Lands and Services
3.3.11
CROWN LANDS
Much of the Municipality's land base is
undeveloped as Crown land owned by the
Province. Over 51.7% (1,030 sq.km) of the land
in the Municipality is owned by the Province,
and about 7.9 % (156 sq.km) is either protected
as part of the Parks and Protected Areas or is
designated for protection (3.4%). The Municipality
recognizes that its forests, geologic reserves,
waters, parks and habitats are some of its most
important assets and the high percentage of
Crown land assures its long-term rural status and
character.
Figure 3.J Crown land in St. Mary's
However, the Municipality has no jurisdiction over
activities undertaken by the Crown or many of the
activities the Crown authorizes on its land, such
as forestry and mining. The high proportion of
Crown land in the Municipality is also a challenge
from a development perspective, since so much
of the land base in the Municipality is essentially
unavailable for development.
POLICY 3-33 Crown Land impacts
Council shall encourage the Province of
Nova Scotia to engage with the Municipality
to develop programs and strategies that
explore the benefits and challenges of Crown
Land and protected Crown Lands in the area.
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MUNICIPALITY OF THE DISTRICT OF ST. MARY'S | MUNICIPAL PLANNING STRATEGY
3.3.12 MUNICIPAL ASSETS
The Municipality currently operates two distinct
sets of asset inventories. Both sets are equally
important for ensuring sustainable service
delivery and opportunities for economic growth in
the future.
The first asset category is comprised of municipal
facilities such as the water utility (including water
treatment facility and water lines), roadways in
Sherbrooke, the St. Mary's RecPlex, the Transfer
Station, the Fitness Centre, the Sherbrooke
Library, the Municipal Office Community Room
and S.H.O.P.S. Room. All of these facilities are
essential for residents' physical and mental
wellbeing, and they form the backbone of
municipal service delivery.
The second set of assets consists of the 108
hectares of municipally-owned land. This land
consists of discrete parcels distributed throughout
the Municipality, with sizable holdings near
Sherbrooke, Port Bickerton (Port Bickerton
Lighthouse Property) and Liscomb. Municipal
lands represent important opportunities for future
development.
Both of these sets of assets must be adequately
supported for long term operational sustainability
to ensure they provide high-quality services and
investment opportunities. It is critical to ensure
that these assets are maintained and fully funded
for the future.
POLICY 3-34 Municipal Assets
Council may adopt an Asset Management
Policy to confirm the Municipality's
commitment to ensuring the sustainable
delivery of services into the future.
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PART 3: COMMUNITY PRIORITIES | Private Lands and Services
3.4 Private Lands and Services
One of the main objectives of the Municipal
Planning Strategy and its associated Land
Use By-Law is to control the size, placement,
adjacency, and use of buildings on private lands
within the Municipality. The aim is to provide
some measure of certainty around people's most
expensive investment (their home or business),
and to guide development in the Municipality in a
manner that protects the natural environment and
supports the functional and aesthetic qualities the
community values.
3.4.1 GENERAL POLICIES FOR PRIVATE
LANDS
Lot Sizes
On unserviced properties, minimum lot sizes
are determined first and foremost by Nova
Scotia Environment's On-site Sewage Disposal
Regulations, which rely on the site's soil type and its
ability to sustainably absorb and treat wastewater
effluent. While the Land Use By-Law may establish
smaller or larger minimum lot sizes, ultimately the
owner of an unserviced lot must also ensure the lot
is sized to accommodate wastewater flows. For a
basic residential system these lot sizes can range
from 2,700 square metres on good quality soils
up to 9,000 square metres on poorer quality soils.
Other wastewater treatment technologies can be
used to reduce lot sizes but the solution must be
determined by an experienced engineer.
In areas of the Municipality with central sewer
collection lot sizes are instead determined primarily
on the desired character of the community.
Smaller lots allow for a compact, "urban" form of
development, while larger lots tend to have a more
"rural" feel.
POLICY 3-35 Lot sizes
Council shall, through the Land Use By-Law,
regulate the size of new lots to meet the
intent of each specific zone, subject to the
Department of Environment On-Site Sewage
Disposal Regulations as applicable.
Existing Undersized Lots
Many older lots were subdivided before the
implementation of the provincial septic guidelines
and present the risk of contamination from septic
effluent. Council recognizes that these lots do
not meet the current standards, but understands
that there may be some need to accommodate
reasonable redevelopment or expansion so long
as land owners can prove there is no potential for
additional pollution.
POLICY 3-36 Relaxation of standards
Council shall, through the Land Use By-
Law, relax standards to allow for the use of
existing undersized lots if they are serviced,
can meet provincial septic requirements, or
do not require wastewater disposal.
Accessory Buildings
Accessory buildings such as garages, sheds, or
barns are permitted in all zones but their location,
size and placement will be controlled by the Land
Use By-Law depending on the zone.
POLICY 3-37 Accessory buildings
Council Shall, through the Land Use By-Law,
permit accessory buildings in all zones with
varying design and placement requirements
based on the zone standards.
3.4.2 RESIDENTIAL DEVELOPMENT
There are a wide variety of residential building
forms in St. Mary's, including single detached
homes, cottages, mini-homes, duplexes,
townhomes, and multi-unit buildings. Some
of these residential properties include small
commercial uses like bed and breakfasts,
daycares, animal daycares, home offices, and
small retail sales or hobby farms. Some of these
commercial uses are compatible with residential
uses, while some need a higher degree of control
to ensure compatibility.
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MUNICIPALITY OF THE DISTRICT OF ST. MARY'S | MUNICIPAL PLANNING STRATEGY
As of the 2016 Census, the vast majority of
homes were single-detached (930). As St. Mary's
population continues to age, there is a need for
different types of housing, and more affordable
housing options. Multi-unit housing will continue
to grow in demand as well as smaller dwellings
such as tiny homes.
POLICY 3-38 Housing diversity
Council shall, through the permitted uses
within the Land Use By-Law, support a wide
variety of housing types in the Municipality.
Secondary or Backyard Suites
Many municipalities across Nova Scotia are
increasingly concerned with housing affordability
and have moved to permit backyard suites
(granny suites, carriage flats, or tiny home) or
secondary suites (in-law suites or basement
apartments) in all residential zones. These new
suites are located on one property with another,
primary, dwelling, but they have a size limit to
ensure that the equivalent of two homes are
not built on one lot. These additional units can
provide a greater range of affordability and
housing diversity to St. Mary's residents and are
particularly well suited to the large lots in the
Municipality.
POLICY 3-39 Accessory dwelling units
Council Shall, through the Land Use By-
Law, permit backyard suites and secondary
suites in all zones that permit single-
detached dwellings, subject to limits on size
and location intended to maintain their
"accessory" nature.
Home-based Businesses
In rural areas, home-based businesses are an
important part of the local economy. Some of
these home-based businesses eventually grow
into larger, stand-alone businesses with staff
and need for a dedicated building. Council
supports the entrepreneurs of St. Mary's by
supporting home-based businesses which do
not compromise the safety or tranquillity of their
neighbours.
POLICY 3-40 Home based businesses
Council shall, through the Land Use By-Law,
permit home-based businesses in all zones
that permit dwellings.
Manufactured Homes
There is currently (2022) one manufactured
home park in Sherbrooke, and in order to provide
flexible housing options for residents, there
could be more built in the future. Stand-alone
manufactured homes are permitted in all zones
the same as a single-detached dwelling, but
in order to create a "manufactured home park",
with many mobile homes on one lot, additional
considerations are required.
POLICY 3-41 Manufactured home park
Council shall, through the Land Use By-Law,
permit manufactured home parks in the
Medium Density Residential Zone and the
Rural Resource Zone, subject to additional
requirements aimed at ensuring each
manufactured home has adequate space
and that basic aesthetic standards (such as
skirting) are established.
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PART 3: COMMUNITY PRIORITIES | Private Lands and Services
Short-term Accommodations
One of the limiting factors for tourism in
the Municipality is the general lack of
accommodations. According to AirDNA, (a
site that measures the bookings of sites like
AirBnB) St. Mary's has only 11 active rentals as
of 2021, by far the lowest of any municipality in
Nova Scotia. To build tourism in the region, and
to provide income opportunities to residents,
Council supports short-term rentals.
POLICY 3-42 Accommodations in Residential
zones
Council shall, through the Land Use By-Law,
permit short-term rentals in all zones that
permit dwellings.
Low Density Residential Zone (RL)
St. Mary's includes neighbourhoods that are
characterized by lower-density residential
development, with the occasional small business
or community amenity. The Low Density
Residential Zone will identify and enable this
existing form of development, as well as enable
a wider range of lower-density residential uses
that are rare or do not exist in St. Mary's, such as
small townhomes.
Additionally, the importance and prominence
of the fishery in St. Mary's has a established a
long-standing practice of residents using their
residential properties in for activities supporting
the fishery, such as boat and gear storage and
repair. These practices are important to the
community and should continue; the Low Density
Residential Zone will continue to enable such
practices.
POLICY 3-43 Low Density Residential Zone
Council shall, through the Land Use By-Law,
establish the Low Density Residential (RL)
Zone to permit a range of lower density
residential housing types, related community
amenities, and traditional activities
supporting the fishery.
Medium Density Residential Zone (RM)
While St. Mary's has, to-date, had limited
multi-unit residential development, Council is
supportive of such options in the Municipality as
a way to diversify the types of housing available
and potentially increase affordability. The Medium
Density Residential Zone is intended to enable
such developments.
POLICY 3-44 Medium Density Residential
Zone
Council shall, through the Land Use By-Law,
establish the Medium Density Residential
(RM) Zone, intended to permit a range of
low and medium density residential uses and
related community amenities.
Higher Density Residential Development
Council is supportive of the potential for higher-
density residential development (in excess of 20
units) but wants to ensure such developments
are considerate of the local context and do not
risk overwhelming local services. As a result,
such developments will only be considered by
development agreement.
POLICY 3-45 Higher Density Residential by
Development Agreement
Council shall consider entering into a
development agreement to permit multi-unit
dwellings larger than 20 units in size in the
Medium Density Residential Zone and the
Mixed Use Zone, subject to Policy 4-13.
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MUNICIPALITY OF THE DISTRICT OF ST. MARY'S | MUNICIPAL PLANNING STRATEGY
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PART 3: COMMUNITY PRIORITIES | Private Lands and Services
3.4.3 COMMERCIAL DEVELOPMENT
Mixed Use (MU) Zone
St. Mary's, and particularly Sherbrooke and
Port Bickerton, has traditionally developed
with a comfortable mix of residential and
commercial uses located side-by-side. This
type of development pattern is well-known to
the community, and is reasonable to continue.
However, it is important for commercial uses to
be limited in size in order to avoid unreasonably
disturbing the balance of commercial and
residential uses in these areas
Sherbrooke is the only community with central
water and sewer services so it can accommodate
greater density and a wider range of commercial
uses than other unserviced areas in the
Municipality. Consequently it makes sense to
provide smaller lot standards, increased unit
counts, and a wider array of potential uses.
The Mixed Use Zone will accommodate this
range of mixed residential and commercial uses,
while offering reduced lots standards in areas
with services.
POLICY 3-46 Mixed Use Zone
Council shall, through the Land Use By-Law,
establish the Mixed Use Zone to permit a
wide range of commercial and service uses of
a limited size, as well as residential mixed-use
development and multi-unit development.
Zone standards shall accommodate both
serviced and unserviced lots to reflect the
diversity of mixed-use communities in St.
Mary's.
POLICY 3-47 Large commercial by
development agreement
Council shall consider entering into a
development agreement for commercial
developments with a commercial floor area
larger than 112 square metres in the Mixed
Use Zone, subject to Policy 4-13.
General Commercial (GC) Zone
Commercial development ranges from a small
corner stores up to large "big box" franchises
and everything in between. The residential
zones provides some flexibility to allow small
commercial uses in residences in St. Mary's,
and the Mixed Use Zone allows stand-alone
commercial uses to a limited size. However,
large, stand-alone commercial uses can have
impacts on the uses around them and should be
zoned specifically for commercial use. Council
recognizes that rural areas must include some
flexibility so St. Mary's allows one residential unit
on each general commercial property.
Very large commercial uses will only be
considered by development agreement to
ensure their visual impact on the community is
adequately considered and controlled.
POLICY 3-48 General Commercial zone
Council shall, through the Land Use By-
Law, establish the General Commercial (GC)
zone to permit a wide range of commercial
uses, as well as a single dwelling unit on
the property. The zone standards shall be
flexible to accommodate the wide range of
commercial needs.
POLICY 3-49 Large commercial by
development agreement
Council shall consider entering into a
development agreement for commercial
developments with a commercial floor area
larger than 600 square metres in the General
Commercial Zone, subject to Policy 4-13.
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MUNICIPALITY OF THE DISTRICT OF ST. MARY'S | MUNICIPAL PLANNING STRATEGY
3.4.4 INSTITUTIONAL USES
Institutional facilities include churches and
places of worship, cemeteries, schools, rinks,
government facilities, community halls, police
stations, and other such facilities. These facilities
are important to the health and social cohesions
of the community and many of the smaller
community-type institutions will be permitted in
a variety of zones. However, larger institutional
facilities should be placed in their own zone.
There may also be a desire to specifically identify
and protect existing uses with institutional zoning.
POLICY 3-50 Institutional Zone
Council shall, through the Land Use By-
Law, establish the Institutional (Ins) Zone,
intended to identify and permit a wide range
of institutional uses.
3.4.5 RURAL DEVELOPMENT
Rural Resource (RR) Zone
The large majority of the land area in St. Mary's is
rural in nature. While much of the land is owned
by the Crown, there is still a substantial amount
of private rural land, particularly along existing
roadways. These lands are suited for a wide
variety of resource-type development, as well
as low-density residential dwellings and their
associated uses. The Rural Resource Zone will
recognize and reinforce the rural character of
these areas.
POLICY 3-51 Rural Resource Zone
Council shall, through the Land Use By-
Law, establish the Rural Resource (RR) Zone,
intended to accommodate resource-based
industries and rural living.
POLICY 3-52 Aggregate-related industry
Council shall consider entering into a
development agreement for aggregate-
related industrial developments in the Rural
Resource Zone, subject to Policy 4-13.
Agriculture (Ag) Zone
Compared to other municipalities in Nova
Scotia, St. Mary's has a low proportion of good
agricultural soils (see Appendix 'B'). This,
combined with the local climate, has meant that
agricultural activity is limited. However, there are a
number of dairy farms and grazing fields, as well
as several small hobby farms, particularly in the
Aspen, Goshen, and Argyle areas.
In Nova Scotia, municipalities have a provincially-
mandated responsibility to identify and protect
good agricultural soils, and to promote agricultural
activities. Agricultural lands often support multiple
buildings on the same lot including one residential
dwelling, or temporary dwelling units for workers
so the agriculture zone needs to be flexible. The
Agriculture Zone will fulfill this role. However,
given the fact that agriculture potential is limited
for other reasons, this zone will still allow for other
uses of these lands.
POLICY 3-53 Agricultural Zone
Council shall, through the Land Use By-
Law, establish the Agriculture (Ag) Zone,
intended to prioritize agricultural activities
and reduce the fragmentation of productive
agricultural lands.
POLICY 3-54 Small scale commercial uses in
Agricultural Zone
Council shall, through the Land Use By-Law,
permit small-scale agri-tourism businesses
to operate within the Agricultural zone
including, but not limited to, restaurants,
farm stays, and u-picks.
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PART 3: COMMUNITY PRIORITIES | Private Lands and Services
POLICY 3-55 Topsoil removal from
Agricultural Zones
Council shall, through the Land Use By-Law,
not permit the removal of topsoil within the
agricultural zone, unless removed from lots
approved for non-agricultural development
or sod or peat production.
POLICY 3-56 Livestock separation distances
Council shall, through the Land Use By-Law
set out separation distances for livestock
operations development to reduce land-use
conflicts.
POLICY 3-57 Agricultural expansion
Council may promote the economic
opportunities for expanding agriculture
in St. Mary's through livestock rearing,
aquaculture, special crop cultivation or
indoor facility cultivation.
3.4.6 INDUSTRIAL DEVELOPMENT
St. Mary's has a long history of industrial
development as part of the region's shipbuilding,
fishing, forestry, mining, and processing activities.
Its active ports and harbours have been the
centre of the Municipality's industry for hundreds
of years and its sparse density (the lowest in the
province) provides opportunities for resource
extraction and potential industrial development
which will not create adjacency nuisances or the
potential for land/air/water pollution.
St. Mary's is one of the few large municipalities
with no industrial park and there may be
economic opportunities to develop one in
the future with its relative close proximity to
Antigonish. Wind energy is a possible new
renewable business opportunity for St. Mary's
especially where it is close to the NS Power
mainline like in the area of Salmon River Lake.
Many resource extraction activities like mining,
forestry and the fishery are the jurisdiction of
higher levels of government, but the Municipality
can control related buildings and facilities through
the Land Use By-Law.
POLICY 3-58 Industrial Zone
3.4.7 Council shall, through the Land Use By-
Law, establish an Industrial (Ind) Zone
to enable a wide range of industrial use
within in the Municipality.
3.4.8 WHALE SANCTUARY (WS)
In February 2020, after two years of researching
hundreds of locations on the east and west
coasts of North America, the Whale Sanctuary
Project selected Port Hilford in St. Mary's as
the best site for the sanctuary. The application
is being coordinated with many provincial and
federal agencies including the Department of
Fisheries and Oceans, Transport Canada, and the
Department of Environment. The site is planned
to include on-site and off-site infrastructure
and facilities, and while the Municipality has no
jurisdiction for water based land uses, it can
control the land based facilities which could
include a mix of industrial operations and visitor
centre facilities.
The presence of the sanctuary in the region could
draw visitors to the region, and the sanctuary
concept is consistent with the Municipality's goals
of sustainable development, conservation, and
environmental education.
Council understands the positive impact this type
of project may have for St. Mary's and will support
its development by creating a zone specific to the
uses of the Whale Sanctuary Project.
POLICY 3-59 Whale Sanctuary Designation
Council shall, on the Future Land Use
Map of this Plan, establish the Whale
Sanctuary Designation on lands intended to
accommodate the Whale Sanctuary Project.
The only zone permitted in this Designation
shall be the Whale Sanctuary Zone.
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MUNICIPALITY OF THE DISTRICT OF ST. MARY'S | MUNICIPAL PLANNING STRATEGY
POLICY 3-60 Whale Sanctuary Zone
Council shall, through the Land Use By-Law,
establish the Whale Sanctuary (WS) Zone to
allow uses pertinent to the Whale Sanctuary
Project.
POLICY 3-61 Review of Whale Sanctuary
Designation and Zone
If the Whale Sanctuary Project has not
commenced development by 2025, or if the
Whale Sanctuary Project no longer owns
the parcels identified as PIDs 37581592,
37581584, 37508819 and 35177567, Council may
review the designation and zoning on these
properties and establish a new proposed use
for the lands through an amendment to this
Plan and the Land Use By-Law.
3.4.9 FUTURE LAND USE DESIGNATIONS
Future land use designations identify, broadly, the
range of activities that are considered appropriate
now, and potentially in the future by amendments
to the zoning map of the Land Use By-Law
("rezoning").
Core Designation
The Core Designation identifies the core areas
of Sherbrooke and Port Bickerton, where
denser, more "urban" forms of development are
appropriate.
POLICY 3-62 Core Designation
Council shall, on the Future Land Use Map
of this Plan, establish the Core Designation
on the denser areas of Sherbrooke and Port
Bickerton, and immediately adjacent areas
where continuation of this development
pattern would be appropriate.
POLICY 3-63 Zones within the Core
Designation
Zones permitted within the Core Designation
are:
1. Low Density Residential
2. Medium Density Residential
3. Mixed Use
4. General Commercial
5. Institutional
6. Parks and Recreation
7. Industrial
Rural Designation
The Rural Designation identifies the bulk of the
rural lands within the Municipality.
POLICY 3-64 Rural Designation
Council shall, on the Future Land Use Map of
this Plan, establish the Rural Designation on
rural areas of the Municipality not otherwise
covered by other designations.
POLICY 3-65 Zones within the Rural
Designation
Zones permitted within the Rural
Designation are:
8. Rural Resource
9. Agriculture
10. General Commercial
11. Institutional
12. Parks and Recreation
13. Industrial
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PART 3: COMMUNITY PRIORITIES | Other Municipal Priorities
3.5 Other Municipal Priorities
The following considerations are also important
for the successful implementation of this MPS and
the associated LUB.
3.5.1 HERITAGE
The Heritage Property By-Law is currently up to
date with the Heritage Property Act, which was
last amended in 2010. The Municipality currently
has a few registered properties, and potential for
new designated properties.
The new Act includes several new incentives for
registered heritage properties including:
»
A heritage conservation advice grant for any
owner to do an assessment, with matching
funding up to $3,000.
»
If the property is registered with a non-profit
or as a place-of-worship, a conservation
work grant (roof, windows, siding or core
structures) may be considered up to a
matching of $7,500 every two years.
»
Support for conservation of monuments in
municipally-registered cemeteries.
»
A sales tax rebate through Service NS
for a full rebate for provincial tax for
eligible exterior materials (excludes labour)
administered through the Sales Tax Act.
»
Support and training for municipal councils.
POLICY 3-66 Heritage Property By-Law
Council shall monitor the Municipal
Heritage Property By-law to ensure it
remains up-to-date and conforms with the
latest Heritage Property Act.
3.5.2 WETLANDS, WATERCOURSES &
COASTAL AREAS
Wetlands and watercourses in Nova Scotia are
protected under provincial jurisdiction and are
subject to provincial regulations set out by the
Department of Environment. Any changes to
wetlands less than 2 hectares are considered
under the Nova Scotia Wetland Conservation
Policy, and those more than 2 hectares require an
environmental impact assessment reviewed under
the Environmental Assessment Act.
Watercourse alterations are controlled under the
Nova Scotia Environment Watercourse Alteration
program.
The On-site Sewage Disposal Systems
Regulations (under the Environment Act),
require a minimum setback of 30.5 metres for
sewage disposal systems from all wetlands or
watercourses.
POLICY 3-67 Watercourse setbacks
Council shall, through the Land Use By-Law,
establish watercourse and wetland setbacks
to protect developments from flooding and
protect natural areas from the impacts of
development.
POLICY 3-68 Coastal setbacks
Council may, through the Land Use By-
Law, establish coastal setbacks to protect
development from the impacts of coastal
erosion, increased storm surges and other
events related to the changing climate to
support the future implementation of the
Coastal Protection Act.
POLICY 3-69 Floodplain overlay zone
restrictions
Subject to detailed floodplain mapping,
council may create a floodplain overlay map
or maps to control development in flood-
prone areas and develop policy consistent
with the provisions of the Provincial
Statement of Interest on Flood Risk Areas.
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MUNICIPALITY OF THE DISTRICT OF ST. MARY'S | MUNICIPAL PLANNING STRATEGY
POLICY 3-70 Coastal zone erosion mapping
Council may work with the Province of Nova
Scotia to prepare coastal erosion mapping
for coastal areas of the Municipality.
POLICY 3-71 Coastal erosion overlay zone
restrictions
Subject to detailed coastal erosion mapping,
Council may create coastal erosion overlay
map to restrict development in erosion-prone
areas.
3.5.3 CLIMATE CHANGE
The Municipality of the District of St. Mary's
Municipal Climate Change Action Plan (MCCAP)
identifies the primary climate-related threats to the
community including greenhouse gases, flooding,
coastal erosion, and sea level rise, and sets out a
series of strategic climate change adaptation and
mitigation actions to address these threats.
The considerations in the MCCAP pertain
to coastal access, commerce and industry,
community facilities, emergency response
systems, parks and protected areas, public
education, roads and bridges, vulnerable
populations, water quality, and wildlife. They
are intended to be carried out based on
available funds, staff, and Municipal guidelines.
Taken together, they lay the foundation for the
development of new planning policies and land
use management strategies intended to prepare
the community of St. Mary's for climate-related
risks in the future.
This MPS builds upon the MCCAP, expanding
upon the mitigation and adaptation strategies
therein by establishing necessary policy to
safeguard human life and property. A successful
response to climate change will involve constant
evolution and evaluation of municipal strategies
and land use policies to ensure they continue
to align with the commitment to support the
community of St. Mary's in its effort to increase
preparedness and resiliency.
adaptaƟon
miƟgaƟon
reducing emissions that
cause climate change
managing the impacts
of climate change
renewable
energy
sustainable
transportaƟon
protect
carbon sinks
efficiency
energy
access to
local food
healthy
ecosystems
complete
community
water
conservaƟon
protect from
sea level rise
community
coordinaƟon
protect from
flooding
emergency
preparedness
Figure 3.L Improved resilience cycle5
5- NOAA Office for Coastal Management, 2015, Coastal Community Resilience Indicators and
Rating Systems, https://coast.noaa.gov/data/digitalcoast/pdf/resilience-indicators.pdf .
Figure 3.K Climate change mitigation & adaptation
63
PART 4: IMPLEMENTATION PLAN | Other Municipal Priorities
PART 4
IMPLEMENTATION PLAN
4.1 Municipal Plan Administration
This Municipal Planning Strategy (MPS) is a
policy document that sets out the vision, goals,
objectives, and policies for development,
conservation, and land use in St. Mary's. This
MPS and its associated Land Use By-Law are
enabled by, and are consistent with, Parts 8 and 9
of the Municipal Government Act.
The adoption of this Municipal Planning Strategy
does not commit Council to undertake any of the
projects or actions contained herein. However,
Council shall not take any action or make any
decision that does not reasonably carry out the
intent of this MPS.
The following policies include the basic
requirements for proper implementation,
administration, edits, and enforcement of to this
document and its accompanying Land Use
By-Law. Where policies address the control of
land use, they must be implemented through
the Land Use By-Law or Subdivision By-law and
through the powers of Council as provided by the
Municipal Government Act and other provincial
statutes as may be applicable.
POLICY 4-1 MPS for St. Mary's
This document and all associated appendices
shall constitute the Municipal Planning
Strategy for the Municipality of the District
of St. Mary's.
Plan Amendments
From time to time, a By-Law amendment may
require an amendment to the Municipal Planning
Strategy to ensure policy consistency. The
Municipal Planning Strategy may also need to be
amended for a variety of other reasons outlined in
the Act.
Plan amendments initiated for the purpose
of a By-Law amendment can be undertaken
concurrently (i.e. Council can consider the two
amendments at the same time).
POLICY 4-2 Plan amendment
Council may consider amendments to the
policies of this MPS or to the Future Land
Use Map under the following circumstances:
1. The intent of any policy is to be changed.
2. The Municipal Planning Strategy is in
conflict with Provincial land use policies
or regulations in accordance with the
Municipal Government Act.
3. A requested amendment to the Land Use
By-Law is in conflict with this Municipal
Planning Strategy and there are valid
reasons for the amendment.
4. A secondary planning strategy is to be
incorporated into the Municipal Planning
Strategy.
POLICY 4-3 Concurrent MPS amendment and
LUB amendments
Council may undertake MPS amendments
and LUB amendments concurrently.
MPS Review
In accordance with the Municipal Government
Act this Strategy must be reviewed no later than
10 years after the later of the following dates:
»
the date it was adopted;
»
the date it was last reviewed; and
»
the effective date of these regulations.
POLICY 4-4 MPS review
Council shall, in accordance with the
Municipal Government Act, review this
Strategy periodically and using the
procedures identified in the Act.
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MUNICIPALITY OF THE DISTRICT OF ST. MARY'S | MUNICIPAL PLANNING STRATEGY
Development agreements are legally binding
contracts which are negotiated between Council
and an applicant to allow more flexibility and
control than as-of-right approval techniques.
When preparing such a document, Council shall
refer to the items to be included in a development
agreement and the evaluation criteria contained in
this Municipal Planning Strategy.
POLICY 4-5 Development agreements
Council shall consider entering into a
development agreement where such an
agreement is enabled by policies elsewhere
in this Plan. Where Council approves a
development agreement, the development
agreement shall:
1. specify the development, expansion,
alteration, or change permitted;
2. specify the conditions under which the
development may occur; and
3. set terms by which Council may amend or
terminate and discharge the agreement.
POLICY 4-6 Development agreement must
meet policy
Council shall not approve or amend a
development agreement unless Council
is satisfied the proposed agreement is
consistent with the enabling policy and the
general criteria set out in Policy 4-13.
POLICY 4-7 Conditions in a development
agreement
Council may specify conditions in the
development agreement to bring the
proposal into alignment with the enabling
policy and the general criteria set out in
Policy 4-13. Such conditions may include, but
are not limited to, controls regarding:
1. servicing;
2. the type, location, and orientation of
structures;
3. the architectural design of structures,
including, but not limited to, bulk, scale,
height, roof shape, building and cladding
materials, and the shape and size and
placement of doors and windows;
4. the provision of open space and amenities;
5. the type, size, and location of signage;
6. the type and orientation of exterior
lighting;
7. management of solid waste, compost, and
recycling;
8. pedestrian, bicycle, and vehicular
circulation;
9. connections to existing or planned
pedestrian, bicycle, and vehicular
networks;
10. the location and number of bicycle and
vehicular parking and loading spaces;
11. access for emergency vehicles;
12. the location and type of landscaping,
including fences and other forms of
screening;
13. stormwater management;
14. grading and erosion control;
15. the emission of noise, odour, light, liquids,
gases, and dust;
16. the type of materials stored and/or sold on
site;
17. hours of operation;
18. the phasing of development;
19. financial bonding for the construction
and maintenance of components of the
development, including, but not limited to,
roads and landscaping;
20. mitigation measures for construction
impacts;
21. time limits for the initiation and/or
completion of development; and
22. all other matters enabled in Section 227 of
the Municipal Government Act.
4.2 Development Agreements
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PART 4: IMPLEMENTATION PLAN | Development Agreements
The Land Use By-Law is the instrument by which
many of the policies in this Municipal Planning
Strategy dealing with land use control and
development are implemented. The Land Use By-
Law establishes certain land use zones, identifies
their location on a Zoning Map, and indicates the
uses permitted and the development standards
required.
The Subdivision By-law is another tool used by
Council to implement this Plan. It sets out the
requirements and processes for such things as
subdividing land and creating streets. Currently,
the Municipality uses the Provincial Subdivision
Regulations as its Subdivision By-law; however,
Council may wish to adopt a stand-alone
Subdivision By-law in the future.
POLICY 4-8 LUB adoption
Council shall adopt a comprehensive Land
Use By-Law setting out specific regulations
to implement this Municipal Planning
Strategy
POLICY 4-9 Appointment of a Development
Officer
Council shall appoint a Municipal
Development Officer to administer the Land
Use By-Law and Subdivision By-law and
grant development permits in accordance
with the Land Use By-Law.
POLICY 4-10 Subdivision By-law
Council may consider adopting a stand-alone
municipal Subdivision By-law to implement
requirements for subdivision that are not
found within the Provincial Subdivision
Regulations
4.1.1 LUB AMENDMENTS
Land Use By-Laws are regularly amended to
accommodate growth, a change in land use,
or to accommodate new technologies which
impact land uses. The Land Use By-Law can be
amended by either changing the zoning map
("rezoning"), or by amending the text in the By-
4.3 Land Use By-Law and Subdivision By-law
Law. Either amendment must conform to the intent
of the policy directions of this Municipal Planning
Strategy. Land Use By-Law amendments can be
initiated by:
»
A request by an property owner to have the
By-Law amended (i.e. a map amendment or
text amendment) for their particular property;
»
A motion by a member of Council to amend
the By-Law; or
»
A change in the Municipal Planning Strategy.
Amendments to the Land Use By-Law must
follow the procedures outlined in the Municipal
Government Act.
4.1.2 VARIANCES
Section 235 of the Municipal Government Act
gives the Development Officer the power to grant
"variances" from the requirements of the Land
Use By-Law. The Act sets out the circumstances
when such variances may be granted, the Land
Use By-Law provisions for which variances may
be granted, and the process for granting such
variances.
POLICY 4-11 Variances
Council shall, in accordance with Section 235
of the Municipal Government Act, permit the
Development Officer to vary:
1. the percentage of land that may be built
upon;
2. the size or other requirements relating to
setbacks;
3. lot frontage;
4. lot area;
5. location and number of parking spaces
and loading spaces required;
6. ground area of a structure;
7. height of a structure;
8. floor area occupied by a home-based
business; and/or
9. height and area of a sign.
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MUNICIPALITY OF THE DISTRICT OF ST. MARY'S | MUNICIPAL PLANNING STRATEGY
4.4 Planning Approvals Process
Amending the Land Use By-Law or entering into
a development agreement can be appealed to
the Utility and Review Board, so such approvals
require a clear, thoughtful, defensible process.
POLICY 4-12 LUB amendment and
development agreement process
In considering amendments to the Land
Use By-Law and processing development
agreements, Council shall:
1. request a policy report and
recommendation from the Planning
Department or Development Officer;
2. refer the matter, where applicable, to the
appropriate Municipal, Provincial, and/
or Federal Departments and Boards and
agencies where special expert advice and/
or recommendations are required;
3. comply with all legal requirements
concerning amendments to the Land
Use By-Law as set out in the Municipal
Government Act;
4. ensure the applicable public participation
policies have been satisfied; and
5. ensure the applicable fees have been paid
by the applicant to cover the cost(s) for
advertising with respect to public notice as
provided for in the Municipal Government
Act.
POLICY 4-13 LUB amendment and
development agreement
considerations
In considering amendments to the Land Use
By-Law or when considering entering to a
development agreement, Council shall have
regard for the following matters:
1. That the proposal is in conformity with
the intent of this strategy and with the
requirements of all other municipal By-
Laws and regulations;
2. That the proposal is not premature or
inappropriate by reason of:
(a) the ability of the Municipality to absorb
public costs related to the proposal;
(b) impacts on existing drinking water
supplies, both private and public;
(c) the adequacy of central water and
sewage services or, where such services
are not available, the suitability of the
site to accommodate on-site water and
sewage services;
(d) the creation of excessive traffic hazards
or congestion on road, cycling, and
pedestrian networks within, adjacent
to, or leading to the proposal;
(e) the adequacy of fire protection services
and equipment;
(f) the adequacy and proximity of schools
and other community facilities;
(g) the creation of a new, or worsening
of a known, pollution problem in the
area, including, but not limited to, soil
erosion and siltation of watercourses;
(h) site-specific climate change risks;
(i) the potential to create flooding or
serious drainage issues, including
within the proposal site and in nearby
areas;
(j) impacts on known habitat for species
at risk;
(k) the suitability of the site in terms of
grades, soil and geological conditions,
the location of watercourses and
wetlands, and proximity to utility
rights-of-way; and
(l) any other matter pursuant to the
Municipal government Act that may be
addressed in a Land Use By-Law which
Council feels is necessary to ensure the
general compatibility of the use and
structures with adjacent areas.
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PART 4: IMPLEMENTATION PLAN | Planning Approvals Process
The success of all municipal planning efforts
hinges on feedback and active engagement
from the community. Stakeholders are integral to
establishing long-term planning objectives as well
as short-term policy and By-Law changes, and
St. Mary's is fortunate to have citizens that care
deeply about ensuring the Municipality thrives in
the coming years.
Feedback throughout the development of this
MPS indicated that the Municipality could improve
its engagement strategy and work harder to
involve residents and stakeholders in planning
efforts. Council will adopt policies, such as the
current Public Participation Program Policy, that
provide procedures to allow public consultation
and notice when reviewing the Municipal Planning
Strategy and Land Use By-Law. This policy
is available digitally on the municipal website.
4.5 Community Engagement
4.6 Final Thoughts
Council will continue to adopt these policies
through the strategic areas that support positive
change and increase community involvement
in decision-making processes in the municipal
government.
POLICY 4-14 Community engagement
Council shall, through steps outlined in the
municipal Public Participation Program and
Engagement Policy, continue to encourage
public participation and community
engagement when amending planning
documents.
The Municipality recognizes that the preceding
community priorities represent complex
challenges and unique opportunities for
the community in the coming years. The
implementation of the strategies and policies
will require a concerted effort on the part of the
Municipality, business leaders and residents
alike. Key partnerships with other governments,
neighbouring municipalities and community
groups will greatly aid efforts to realize the
community vision. Council will continue to involve
abutting municipalities whenever necessary to
ensure planning efforts are beneficial for our
region as a whole.
Council recognizes that change is an evolving
process, and many of the strategies and
associated policies will require substantial
reorganization of current land use planning
practices. Some of the policies will impact
residents' current use of land, and the
Municipality is committed to providing guidance
to landowners and developers to help ensure
adherence to the new regulations as outlined in
the By-Law.
The Municipality views this Municipal Planning
Strategy as a continuation of efforts already
underway to improve the quality of life of the
community in St. Mary's and ensure a bright
future for residents.
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MUNICIPALITY OF THE DISTRICT OF ST. MARY'S | MUNICIPAL PLANNING STRATEGY
APPENDIX A - FUTURE LAND USE MAP
APPENDIX B - AGRICULTURAL SOILS MAP