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SECTION 2: PLANNING FRAMEWORK ______
2.0 Introduction
North Grenville is an urban and rural Municipality of approximately 15,000 people enjoying the benefits of quality lifestyles, natural and heritage amenities, essential services and positive growth. The Municipality includes the Town of Kemptville, and the Hamlets of Bishops Mills, Burritts Rapids, East Oxford, Heckston, Oxford Mills, Oxford Station and Peltons Corners. The Municipality is strategically located twenty (20) minutes from the Nation's Capital, Ottawa, the international airport and the border with the United States at Ogdensburg, New York.
The Municipality shall continue to create a hospitable economic environment with sustainable employment opportunities in a planned, financially sound community that recognizes its valued assets.
The Vision Statement provides the context or framework within which the long range planning of the Municipality should occur. It sets out the characteristics of North Grenville which make it a special place to live, work and visit, and provides an image of the Municipality that is desired for the future.
In planning for the future, the Municipality has taken stock of its past and present, as well as the economic and social trends which are occurring in the region and province. Background studies were undertaken and focus sessions, questionnaires and public meetings were held to determine the type of community desired in the future.
The following section represents the basis of the North Grenville Official Plan.
2.1 Vision Statement
The North Grenville Official Plan is one tool in which to implement the strategic priorities, objectives and initiatives of the North Grenville Strategic Plan.
The following vision statement comes from the 2006 Strategic Plan. The vision reflects the community in ten years from now, that is in 2018.
“The people of North Grenville have very good reason to celebrate their significant success in creating an environmentally responsible community, achieved through extensive cooperative community leadership. North Grenville also continuously works towards economic self-sustainability, providing a diverse range of employment opportunities within the municipality. It is endowed with many widely-recognized community assets, and each contributes in many ways to outstanding culture, heritage, learning, education, healthy living, employment, recreation, events, and tourism in the area. As a result of the cooperative leadership of the community, businesses, local government, and institutions, North Grenville impresses all who visit with its continuously
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improving quality and its integration of community design and development. This is particularly evident in the downtown and its waterfront, its major streets including County Road 43, and the strong pedestrian and green space linkages between all major community assets and throughout the community. North Grenville appeals to people who enjoy an environment offering a choice of residential settings, ranging from friendly small town and preserved historic hamlets to expansive rural areas.”
There were three community values that underpin the above vision and the strategic plan:
1. North Grenville is comprised of supportive, caring, and friendly people – which is reflected in local organizations;
2. North Grenville believes in economic self-sustainability of community;
3. Environmental sustainability is a core value of the North Grenville community.
2.2 Interpretation of the Vision Statement
The Municipality is committed to realizing this Vision for the future. A strategic and proactive Official Plan will help to achieve this ideal community. The Vision is attainable because it is based upon building from the current strengths of the community, while enhancing other features. The Vision will help the Municipality in guiding and assessing land use changes and development trends in the future.
2.2.1 The Future of North Grenville
The Municipality of North Grenville has been occupied since prehistoric times, first by native people and then by settlers of European descent with the arrival of fur traders and missionaries. Much of the Municipality's built heritage dates from the early nineteenth century. The stock of buildings that remains constitutes a valuable record of the architectural history of the area. Hamlets such as Oxford Mills, Burritts Rapids, Bishops Mills and Heckston illustrate many aspects of nineteenth century urban life. Beautiful tree-lined country roads connect these settlements, winding past a wealth of historic rural properties.
The Municipality of North Grenville will continue to be a vibrant and exciting place to live, work and visit. It will provide a wide range of housing while preserving the historical rural charm of the past. It will be a place for those persons of retirement age seeking an alternative to urban life.
The Municipality as envisaged will continue to have the social and cultural values that have evolved through time; a community spirit, a sense of belonging, a tradition of self- reliance, social responsibility, sharing, neighbourliness and an appreciation of heritage and culture. This quality of life will have been preserved through new economic opportunities.
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2.2.2 Environmental Resources
As a result of increased environmental awareness and the desire for linking economic growth with environmental sustainability, the management and preservation of the Municipality's natural resources will play a prominent role in the evolution of the community.
Important waterways, wetlands, floodplains, areas of natural and scientific interest, fisheries and wildlife habitat, woodlands, agricultural land, and aggregate reserves will be managed and protected, since these natural heritage features, constraints, resources and attractions are an important part of what makes the Municipality special and unique.
Aggregate reserve areas will be protected across the Municipality to serve future needs, in locations where the aggregate extraction will be compatible with adjacent uses and accessible to major haul routes. Once mined, these areas should be rehabilitated to appropriate uses that are in keeping with surrounding land uses.
The Municipality will encourage co-operation and co-ordination among aggregate operators with respect to the location, timing, management, operation and rehabilitation to ensure minimal disruption to the rural character of the area.
2.2.3 Growth Pressures
The impact of Highway 416 and the expanding population of the City of Ottawa will be felt in the Municipality. The Municipality's population will likely increase by 12,901 people by 2028 to approximately 26,668 inhabitants, a growth rate in excess of the Provincial average. As such, the planning horizon for this Plan is to the year 2028.
The Municipality currently does not have the infrastructure in place to accommodate all of the anticipated growth. Efficient use of existing serviced land, the logical extension of services and sensitive infilling will accommodate a portion of the growth influx. Upgraded and new infrastructure in the Town of Kemptville will be required to accommodate development opportunities. The Municipality shall investigate and review new technologies which have the potential to address the servicing issues within the Municipality.
In anticipating the pressures for growth, careful planning and decision-making will ensure that the unique and desirable characteristics of the Municipality are not lost in order to accommodate the growth pressure.
2.2.4 Settlement Patterns
The Town of Kemptville will provide a mix of housing opportunities, including affordable housing, and will continue to be the primary centre for residential, commerce and services for North Grenville.
The Hamlets of Heckston, Pelton's Corners, Oxford Station, Bishops Mills, Oxford Mills, Burritts Rapids, Bedell and Patterson’s Corners will continue to function as local service centres and, in some cases, centres for tourist day trips. The Municipality will provide a range of housing opportunities located primarily in the Town of Kemptville. Additional low
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density residential development will take place in hamlets, existing rural residential subdivisions and traditional rural areas.
Considerable pressure has been exerted on the Municipality for residential development. In the future, the Municipality will endeavour to balance economic growth by actively encouraging desirable commercial and industrial development in appropriate areas to complement residential development and contribute to the development of a complete community.
Redevelopment activities in the Municipality will result in the ongoing restoration of the historic building stock and there will be more emphasis on architecturally blending the "new" to reflect the "old" when developing new projects where such is merited. The Municipality will encourage affordable housing initiatives and redevelopment of brownfield sites.
New settlement in the Municipality will be planned to avoid future servicing problems, since potable groundwater limitations exist in certain areas of the Municipality.
In an effort to maintain the quality, diversity and character of the rural landscape, and to support the policies of “Smart Growth” only existing designated Rural Residential lands will be developed. In addition, the Municipality will permit up to 150 rural residential lots to be created during the planning period under the “cluster lot” policies in Section 12.5 of this Plan.
2.2.5 Economic Development
North Grenville has a strong and growing local economy that offers a range of employment opportunities for its citizens. Employment opportunities will be provided through a balance of research and development, ‘green’ technology, education, agriculture (agri-food industries), tourism, service and light industry, and health care in areas designated and determined to be best suited for each economic sector. A well- rounded, vibrant community with economic opportunities for people of all ages will be an objective for the Municipality.
The Municipality of North Grenville will foster a climate for innovative economic opportunities with cooperation among members of the community and all levels of government. More non-residential taxable assessment will be promoted to lessen the dependency on existing and future residents and assessment. In addition to attempting to attract new commerce and industry, the Municipality will encourage the retention and expansion of existing businesses as an important generator of local employment and will support the development of ‘green’ technology.
2.2.6 Agriculture
In the future there will continue to be a distinct and important rural component to the Municipality. Businesses which support the agricultural sector by adding value to farm products will be encouraged and there will be an emphasis on agricultural research.
New and alternative (organic) agricultural products will be developed through research and development efforts that will help sustain the viability of the agricultural industry in
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the Municipality.
Farming activities will be protected from incompatible encroaching development and encouraged along tourist routes to enhance the rural atmosphere.
2.2.7 Tourism
There will be a strong tourist demand in the future for the agricultural, natural, historical and cultural attractions of the Municipality. The protection and enhancement of the area's natural, historical and cultural attractions will be the focus of the Municipality's successful tourism strategy. The historic Rideau River and South Branch of the Rideau River (Kemptville Creek) will play an important role in this regard. Tourist support services will be expanded to complement and enhance the attractions of the Municipality.
An increased number of recreational facilities and opportunities, including golf courses, walking, cycling, skiing and snowmobile trails, will help service the leisure needs of the tourists and residents of the Municipality.
2.2.8 Commerce and Industrial
The commercial service sector comprised of community, business, industry and personal services will be encouraged to expand and diversify as the population increases. The Town of Kemptville and the South Gower Business Park will be the focus of the majority of future commercial and industrial activity.
A diverse, high quality and innovative service industry making full use of new technology will be established in the Municipality.
Highway 416 will be promoted as an economic development corridor. Industrial and commercial land with full municipal services and in relatively close proximity to Highway 416 will be available in the Town of Kemptville.
2.2.9 Social Needs
The Municipality will be a healthy community which strives for a high quality of life for all of its citizens. The Municipality will be an attractive location for all ages of families and individuals, offering a high quality of life for all those who live here.
The mental and physical health of the Municipality's residents will depend upon the effective delivery of:
a) Professional health care services (i.e., medical doctors, optometrists, dentists, emergency care);
b) Affordable housing (rental and ownership) for people of all ages and levels of independence (single detached homes, multiple residential, home sharing, nursing homes, homes for the aged, etc.);
c) Health and community services including those that rely greatly on the efforts
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and donations of volunteers from within the community (i.e., meals on wheels, home care, etc.);
d) Education that provides skills for healthy living, leadership development and self- fulfilment, including employment opportunities within the Municipality;
e) Recreational programs and events that encourage physical activity, social interaction and an appreciation of the Municipality's culture and heritage;
f) opportunities to experience the natural environment through an expanded trail system, the Rideau River, South Branch and numerous public open space areas.
Health care, social services, and recreational programs within the Municipality will be community based, accessible and affordable. The Town of Kemptville will serve as a base for the administration and distribution of health services.
2.2.10 Linkages
The transportation, servicing and communication networks constitute the linkages within which the Municipality’s residents and visitors will live, work and play. In an effort to reduce our carbon footprint, it will be an ongoing goal to minimize the time, distance, economic and energy costs of movement for persons, goods and information. Development along major roadways in Kemptville, particularly along entrance routes to the Municipality, will consider its surrounding and improve the quality of the built environment.
The Rideau River and South Branch waterways, the provincially and locally significant wetlands and significant woodlands within North Grenville collectively represent important natural linkages within the Municipality which contribute to a sustainable environment and important natural habitat
Electronic linkages to assist or encourage businesses, telecommuters, home-based businesses and communication will become more important in the future.
The Rideau River and South Branch waterways and a well established trail system will be major elements in the recreation linkages within the Municipality.
The protection of former railway corridors, as public lands, should be encouraged in those appropriate circumstances for such potential uses as recreational, communication, utility and transportation corridors including rapid transit.
Individual, private modes of transportation will continue to be relied upon in the future, however, alternative transportation modes will be supported.
The integrity of the existing Provincial, County and Municipal road networks shall be maintained and upgraded, and integrated with cycling and walking routes as much as possible.
Within built-up areas, emphasis will be placed on designing facilities that encourage walking and cycling. Walking and cycling trails that connect shoreline areas, existing
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parks or other important physical or man-made features will be developed wherever possible.
Linkage opportunities to the larger market area provided by major infrastructure, such as Highway 416, County Road 43, railway corridors, and the Port of Prescott will continue to offer a locational advantage for the Municipality.
2.3 Economic Development Strategy
The Economic Development Strategy is intended to provide a strategy to address current economic challenges and to optimize its future economic growth. It is intended to guide economic development planning and decision-making over the long term. The North Grenville Economic Development Strategy also contained a Vision Statement and Strategic Themes.
2.3.1 Economic Development Vision
North Grenville has a strong and growing local economy that offers a diversity of employment opportunities for its citizens. The local business environment makes entrepreneurship and business growth easy, and continuous diversified economic growth and expansion is occurring in North Grenville, anchored in downtown Kemptville and in business parks that are home to new and relocated businesses.
While it is recognized that the commercial and industrial development along County Road 43 and in the Economic Enterprise area abutting Highway #416 are a powerful economic engines within the local economy, downtown Kemptville will continue as an important employment, cultural, heritage and social focus for North Grenville, presenting a charismatic mix of retail and service businesses nestled within heritage structures or buildings that complement the rich heritage of downtown. Downtown is a destination and the focal point of North Grenville’s art, cultural, and heritage amenities – which draw people from afar. Its businesses, which excel in providing outstanding customer service to patrons of all ages, benefit from an increased density of residents of all ages living downtown.
Downtown presents its visitors with a continuous façade of interesting storefronts that capture the essence of historic Kemptville. Visitors delight in its heritage, its retail, food, and entertainment offerings, all of which are anchored by its waterfront – the star attraction.
North Grenville is recognized and appreciated as a recreational, heritage/history, arts and cultural destination, especially within the National Capital Region. Event coordination and tourism marketing help to promote North Grenville’s tourism sector year-round. The waterfronts, and the Municipality’s abundance of heritage and history has shaped North Grenville’s unique tourism destination brand. These positive attributes are bolstered by the presence and drawing power of Kemptville District Hospital, the Ferguson Forest Centre, and the University of Guelph – Kemptville Campus, all of which generate economic activity extending far beyond municipal boundaries.
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North Grenville also provides a multitude of opportunities for residents and visitors to engage in recreation, both passive and active, particularly with respect to use of the Rideau River and the South Branch, the Ferguson and Limerick Forests, a growing trail network, and equine tourism – all of which add to the quality of life enjoyed in North Grenville.
The Economic Development Plan of the Algonquins of Ontario proposes a system of Algonquin Nation Trails and Tourist Commercial Rest Stop areas based on historic Waterways (e.g. the Rideau River) and Highways (e.g. County Road 43 and Highway 416), as well as Recreational Vehicle Trails. The Town of Kemptville and environs immediately north and east have been identified as a potential convergence of all three Algonquin Nation Trail systems. The Municipality recognizes this as an important Tourist and Highway Commercial development initiative, which has the potential to be mutually beneficial.
2.3.2 Strategic Themes
Strategic Themes have been developed through broad stakeholder consultation and a thorough situational analysis, and will be used to guide economic efforts in North Grenville over the planning horizon. These themes build on the competitive strengths and opportunities of North Grenville, outline a desired future state and actions to achieve the desired future state.
x Economic Development x Local Economic Generators x Downtown Kemptville x Tourism Development
2.3.3 Support for Economic Development Strategy
It is the intent of Municipal Council to support the Vision and Strategic Themes of the Economic Development Strategy as guiding principles which provides direction to the Official Plan and its implementing mechanisms to the extent that the Strategy relates to growth management and land use planning policy.
2.4 Growth Forecast
This Section of the Plan deals with anticipated population growth, housing demand and land area requirements for growth areas to the year 2028. Growth forecasts are necessary for the planning and timing of land development, infrastructure expansion and the provision of public services and facilities.
The growth forecasts providing the basis for the Official Plan at the time of its initial adoption in 1999 were based on the 1994 Growth and Settlement Report. Updated population growth and housing demand projections were completed at the outset of the 1999 Official Plan project and again in 2008 in conjunction with the Official Plan Review.
The forecast report was updated in the Spring of 2008 as part of the five year
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comprehensive review. The employment, population, housing and non-residential construction projections assumed 3% growth per year as the basis for the determination of land needs. The resulting forecast and land requirements to accommodate growth over the planning period (2008-2028) are taken from the 2008 Land Needs Background Study. The growth forecast projects the population to increase from the 2006 level of 14,896 to a 2028 level of 28,668 persons. In terms of household growth, the projected number of households is expected to increase from the 2006 level of 5,361 to a 2028 level of 11,707 households.
2.4.1 Regional Context
The Municipality of North Grenville is strategically located twenty (20) minutes from the Nation’s Capital, Ottawa, an international airport and the border with the United States at Ogdensburg, New York. Much of the impetus of its growth can be attributed to its strategic location, not to mention the quality of its natural and built environment.
This Plan is formulated on the premise that North Grenville will continue to develop and attract new families and businesses which generate population and economic growth. The Municipality will plan to accommodate the growth that it is generating within its designated growth areas through the efficient use of land and services.
2.4.2 Population Projection
The population of the Municipality of North Grenville has been projected to grow at a rate of 3% per annum reaching approximately 28,668 people by 2028.
The approved population projection is as follows:
Estimated Projected 20061 2011 2016 2021 2026 2028 Projected Growth Scenario (3% per year) 14,896 17,345 20,108 23,310 27,023 28,668 1. Source: 2006 population estimated based on housing starts, demolitions and average number of persons per dwelling from the 2006 Census
2.4.3 Housing Demand
Total new residential construction in the 20-year planning period is expected to be approximately 6,249 new units. The following table shows the annual housing completion forecast to 2028:
Low density housing is expected to continue to account for the majority of housing completions, especially within the rural area. Medium density housing types such as row houses and apartments are anticipated to become a more common form of residential development within the urban serviced area. The trend towards medium density residential development within the urban area can be attributed to changes in the population profile (aging of population), requirements for increasing the supply of affordable housing and a more efficient use of land.
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The Municipality has established the following housing mix targets for new development:
x Low Density - 70% x Medium Density - 30%
2.4.4 Economic Outlook
The Municipality of North Grenville will seek to retain its resident labour force by ensuring a diversified economic base. While its economy, like that of all municipalities, is influenced by the many factors beyond its control, such as the global economy, interest and exchange rates, fuel costs, federal and provincial taxation, regulation and trade policies, it does have key areas in which commitment and action are required to remain competitive:
a) Economic Development: support for the overall economic development effort;
b) Local Economic Generators: namely the Ferguson Forest Centre; the Kemptville District Hospital; and the University of Guelph – Kemptville Campus;
c) Downtown Kemptville must be kept healthy through downtown revitalization and business retention and expansion;
d) Tourism development: Rideau Canal’s designation as a World Heritage Site represents a major international tourism destination located within North Grenville. This, along with our expanding trail system, the Limerick Forest and our robust arts, culture, heritage, history, recreation, waterfronts, downtown Kemptville, and equine agri-tourism all contribute to the economic health and well being of the community and its expanding tourism economy.
e) Industrial land development: serviced industrial land is required to accommodate and attract small industries and other non-commercial businesses.
The Municipality will promote the creation of a ‘green’ technology highway along Highway 416 by encouraging companies who develop ‘green’ technology to locate or relocate along this corridor.
2.4.5 Land Requirements
The forecasted growth in population, housing and employment will be accommodated in the following ways:
a) through intensification of land use in existing settlement areas involving infill, redevelopment and the conversion of existing buildings. Council will promote opportunities for redevelopment and intensification through the provision of adequate infrastructure and community facilities and through the reuse of brownfield sites.
b) through the development of vacant, designated Residential, Commercial,
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Economic Enterprise or Industrial lands within the general limits of the existing urban areas. It is assumed that all such lands will be developed over the planning period; and
c) through the identification of lands suitable for urban area expansion to accommodate community and employment related growth. Such areas are sized according to the residual demand for housing and employment after taking into account an allowance for intensification; an allowance for the existing supply of vacant, designated land; a contingency for the possibility of a higher resident labour force remaining in Kemptville, and an average density of 23 units per gross hectare. The minimum density for residential development within the urban serviced area shall be 15 units per gross hectare, while the maximum density shall be of 33 units per gross hectare.
2.5 Growth Management Policies
2.5.1 Introduction
Responsible growth management is key to the accomplishment of the Vision of this Plan. Growth management seeks to optimize the use of existing and new services and facilities, to protect and rehabilitate its natural heritage, to conserve its prime agricultural lands, to take full advantage of its opportunities for sustainable economic development and to promote a healthy community, while maintaining a strong financial position for the Municipality.
2.5.2 Growth Management Principles
The Growth Management Policies are based on the following principles:
a) that growth within the Town of Kemptville will maintain a compact urban form;
b) that the measures necessary to accommodate growth through land use intensification, having regard to the timely and efficient use of existing infrastructure, will be supported;
c) that growth-related infrastructure costs and the financial implications of required works for the Municipality’s capital budget and development funds will be evaluated and reported at an early stage of the development approval process;
d) that growth will be directed to areas that are suitable for the provision of full municipal services in keeping with the Municipality’s long term servicing and financial plans;
e) that existing lands designated for Rural Residential development will be developed for low density residential purposes;
f) that a maximum of 150 residential lots may be created during the planning period within the Rural designation in accordance with the “cluster lot” policies of the Plan;
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g) that outward expansion of the urban area will be managed to provide for a logical progression in the extension of service areas having regard to cost-effectiveness and optimization of existing infrastructure capacity;
h) that the Municipality may stage the extension of services and approvals of development both within new areas of community growth and between new areas of community growth to maximize the cost effectiveness of its infrastructure investments;
i) the Municipality will encourage the majority of new development to be planned to provide a mix of housing types and tenures as a means of diversifying the housing stock and encouraging the supply of affordable housing;
j) that the Municipality maintain an adequate supply of vacant designated land to accommodate the expansion of its urban area in an orderly, efficient, timely and affordable manner;
k) that the implications of new development for the financial health of the Municipality will be assessed and that growth related costs will be financed from revenues generated from growth;
l) that the Municipality will consider and encourage viable innovative proposals such as partnerships, cost-sharing and alternative technologies and design standards, that may reduce the overall costs of growth, provide affordable housing or allow for the more timely delivery or use of the infrastructure required for growth, provided such proposals satisfy municipal requirements;
m) that planning for growth will support the identification and protection of the Municipality’s natural heritage;
n) that the Municipality will encourage measures that protect and enhance the ecological function and integrity of the area’s natural heritage in a sustainable manner and shall manage development to avoid natural hazards and significant natural features;
o) that planning for growth will support the identification and protection of the Municipality’s cultural heritage resources; and
p) that the Municipality may adopt and annually update a development staging strategy to co-ordinate the orderly progression of urban area expansion with municipal investments in growth related capital works.
2.5.3 Growth Financing Policies
The financing requirements to service new development should not impact the long term financial health of the municipality or place an undue burden on existing taxpayers. The following growth financing policies are intended to achieve these objectives:
a) Growth related capital works will be recovered from revenues generated from
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new development.
b) The review of major development proposals or plan of subdivision will require a complete financial impact analysis demonstrating the potential financial implications of the proposed development on the Municipality, major development proposals or plan of subdivision may not be approved without an approved plan for financing municipal services. Approval of major development proposals or plan of subdivision may be refused or deferred if a satisfactory financial analysis is not submitted for the Municipality’s review or if the Municipality determines that the required investment in municipal work is premature. The financial impact analysis will consider the scope, total cost, cost sharing and timing of major road, sewer, water and storm water management works. The financial impact analysis shall also incorporate an assessment of the total cost, cost sharing and timing of community facilities and services, including parks and recreation facilities, libraries, and fire and police services needs associated with growth. The analysis will also project the development charge revenue to be generated from the build-out of the development area. The Municipality may stage infrastructure works and/or development approvals to manage its capital budget commitments.
c) The Municipality may consider the involvement of the private sector in the development, operation, construction and financing of long term servicing infrastructure.
d) Temporary servicing arrangements must be consistent with long term planning, servicing and financing strategies and policies and must contribute to the cost of providing long term servicing through the payment of development charges.
e) The Municipality may explore alternatives for the financing of over-sizing costs (that portion of servicing projects that have been sized to accommodate growth beyond the planning period) until these costs and related interest carrying costs can be recovered from future development.
f) The Municipality will plan and budget for major infrastructure works in keeping with its financial management strategy and with regard for the balance of revenues and expenditures from its development charges funds. Infrastructure works and development approvals may be staged accordingly. It may be necessary for the Municipality as a whole to carry costs associated with growth for a period of time.
g) The Municipality will consider, as part of a development charges study, the use of differential rates to encourage affordable housing, intensification and infilling.
2.5.4 Growth Servicing Policies
The Municipality of North Grenville will plan the provision of services to accommodate growth so that servicing is timely, cost efficient, environmentally-sound, consistent with long term servicing plans, and within the financial means of the Municipality. Servicing subject to this strategy includes physical infrastructure, such as sanitary sewerage works, storm drainage works, water supply and distribution, and road works. It also
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includes the provision of community facilities and services, including parks and recreation facilities, libraries, and fire and police services. The Municipality, in consultation with the appropriate agencies, will also have regard for the provision of other services, such as electrical and communications, utilities, schools, health services and other social services.
2.5.4.1 General
The Municipality will apply the following policies to the planning, review and approval of development applications and servicing proposals:
a) The services required to support growth will be identified through the update of the Official Plan, the North Grenville Water and Wastewater Servicing Master Plan, and other major plans or studies as may be approved by Council.
b) The Municipality will monitor the servicing requirements of proposed and approved development and manage the expansion of its municipal services to provide adequate capacity and performance in a timely, cost efficient manner. The Municipality will strive to optimize the existing infrastructure. Growth will be managed in terms of the availability of uncommitted sewer and water servicing capacity and the capacity of the transportation system.
c) Development approvals within the urban service area will only be given where there is sufficient existing or planned servicing capacity to accommodate the proposed use within a reasonable time frame. Partial services shall only be permitted in the following circumstances:
i. Where they are necessary to address failed individual on-site sewage services and individual on-site water services in existing development; and ii. Within settlement areas, to allow for infilling and rounding out of existing development on partial services provided that: - the development is within the reserve sewage system capacity and reserve water system capacity; and, - site conditions are suitable for the long-term provision of such services.
d) Where projected and potential growth within any portion of the Urban Serviced Area is nearing or exceeding the threshold of available sewer or water servicing capacity, the Municipality will adopt measures to manage the allocation of available capacity until such time as the capacity constraints are resolved. Where the constraints are likely to be short term (generally less than three years), such measures may include, but are not limited to deferral of development approvals; the use of conditions to ensure that development, once approved, occurs in a timely manner; the use of holding zone provisions; and development phasing limitations. Where the solution to a capacity constraint is longer-term in nature, the Municipality will establish priorities for the allocation of available capacity and limit development approvals in accordance with these priorities so that planned growth does not exceed the availability of servicing capacity. The following order of priorities for the allocation of servicing capacity is based on the Official Plan objectives related to effective use of infrastructure, intensification and infill, compact urban form and economic development:
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i. Growth in the form of redevelopment, expansion or intensification on serviced lands within the built-up area of the Municipality will take precedence over growth on previously undeveloped lands. Capacity will be allocated on the basis of projected demand plus a reasonable contingency. ii. Employment related growth (Industrial, Commercial, or Institutional) growth will take precedence over non-employment growth on previously undeveloped lands. Capacity will be allocated on the basis of projected demand. iii. Remaining capacity will be allocated for non-employment related growth on previously undeveloped lands. Within these areas, priority will be given to development that, in the opinion of the Municipality, best advance the public interest. iv. Take-up of allocated capacity will be monitored. If significant portions of the allocated capacity are not used, the Municipality may re-assign that unused capacity in keeping with priorities a), b), and c), assuming no major works will be prematurely triggered.
Applications that do not meet the Municipality’s priorities for the allocation of servicing capacity may be refused on the basis of prematurity. e) Non-growth needs will be addressed in conjunction with the planning and delivery of growth related services. f) The Municipality will pursue the orderly development of growth areas so that services are efficiently used. g) Sewer and water services will be sized according to ultimate land areas and populations intended to be served. h) The Municipality will not extend municipal water and sewer services beyond the limits of lands designated for urban growth except as set out in this Plan. Proposals to expand municipal water and sewer services beyond the limits of lands designated for urban growth in this Plan shall require a comprehensive review and a site specific amendment to this Plan or be incorporated as part of an Official Plan update associated with a Five Year Review. Minor adjustments or extensions for the proper configuration of development and the road system or to provide land necessary for community amenities, such as parks, recreation facilities or schools and which do not involve the construction of new buildings may be considered through an amendment to the Zoning By-law. i) The use of existing infrastructure and public service facilities will be optimized, wherever feasible, before giving consideration to the development of new infrastructure and public service facilities. j) Infrastructure and public service facilities will be strategically located to support the effective and efficient delivery of emergency management services. k) As part of the 2008 Five Year Review, the Municipality has added considerable lands into the Urban Boundary to the north of County Road #43 and west of County Road #44, hereafter referred to as the Northwest Quadrant. As part of
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the long term development plan for this area, the Municipality will encourage the various property owners within the area to participate in the creation of a coordinated “concept plan.” Such a concept plan would identify the natural heritage features, environmental hazards and constraints, road networks, pedestrian linkages, water, sanitary and stormwater servicing, and parkland needs for the area. It would be anticipated that the individual development proposals would complement the agreed upon concept plan for the area.
2.5.4.2 Sanitary Sewerage
a) The Municipality will promote the maintenance and expansion of a municipal sanitary sewerage collection and treatment system that will avoid development and land use patterns which may cause environmental or public health and safety concerns and that will:
i. have the potential to service all areas of the Municipality intended for urban development; ii. maximize the service area of gravity drainage systems and minimize the number of pumping stations required; iii. optimize the capacity of the existing treatment plant and collection system to accommodate growth; iv. provide for continued improvement in the quality of the effluent being directed to the Rideau River; v. be financially viable and in compliance with all regulatory requirements; and vi. protect human health and the natural environment.
b) Within the Urban Service Area, development on individual wastewater treatment systems will be only be permitted as an interim measure on holding tanks until sanitary services are extended to the site.
2.5.4.3 Water Supply
a) The Municipality will promote the maintenance and expansion of a water supply system and distribution system that will avoid development and land use patterns which may cause environmental or public health and safety concerns and that will:
i. have the potential to service all areas of the Municipality intended for urban development; ii. provide adequate water pressure for all servicing conditions; iii. optimize the capacity of existing pumping stations and reservoirs; iv. place a high priority on the efficient use of water as a method to minimize the future demand for water supply and associated sewage treatment; v. direct and accommodate expected growth in a manner that promotes the efficient use of existing municipal water services; vi. be financially viable and in compliance with regulatory requirements; vii. participate in source water protection planning and implement measures to ensure protection of the municipal wells; viii. promote water conservation and water use efficiently; and ix. protect human health and the natural environment.
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b) All development within the Urban Serviced Area should be dependent upon the municipal water supply and distribution system for both potable water and fire protection.
2.5.4.4 Storm Water Management
Storm water management is intended to protect, improve or restore the quality and quantity of water within the Municipality. Storm Water management plans shall be prepared in accordance with Section 13.6.
2.5.5 Staging of Development
The Municipality may adopt a development staging strategy to ensure the orderly progression of development within the Urban Serviced Area and the timely provision of the infrastructure required to support fully serviced residential and employment areas. The staging strategy will be directed towards the following objectives:
a) support the timely build-out of existing planning communities in a logical, phased manner that optimizes the utilization of any new infrastructure that is required to support the development;
b) focus growth in areas that have existing or planned servicing capacity or comparatively lower costs for required infrastructure;
c) provide a basis for long-term, reliable municipal capital budgeting for growth- related servicing works;
d) ensure that services are in place or planned to maintain an adequate supply of lands to support the Municipality’s economic growth;
e) support growth in areas that are or can be served by existing community facilities or where development will facilitate the provision of new community facilities;
f) avoid scattered or “leapfrog” development patterns;
g) ensure that sufficient serviced lands are available to support the Municipality’s housing mix and affordability objectives; and,
h) logical extensions which support alternate modes of transportation, such as walking, cycling and transit services.
2.5.6 Growth Forecasting and Monitoring
a) The Municipality will monitor its growth forecasting. Population and housing demand projections will be updated and approved at five year intervals in association with the review of the Official Plan. The process of updating and approving these projections will include opportunities for public and agency review and input.
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b) The Municipality will monitor population trends and changes in housing composition and distribution through the review of census and assessment data and building permit activity, and through information sharing with other agencies and organizations.
c) The Municipality will monitor local, regional and provincial economic trends and growth forecasts and consider the implications of these trends and forecasts for its growth management policies.
2.5.7 Land Requirements Forecasting
a) The Municipality will maintain an adequate supply of land designated and available for urban growth to accommodate its projected residential and employment growth requirements. The target range for the inventory of vacant land designated for urban growth will be a twenty year supply. While much of the forecasted growth will be accommodated through the development of vacant lands, the Municipality will promote opportunities for intensification and redevelopment to optimize the share of growth that can be accommodated within the existing urban area.
b) The Municipality will update its land requirements projection at five year intervals as part of the comprehensive review in conjunction with the review of the Official Plan. The processes of updating, projecting and/or approving the land requirements for residential and employment growth will include opportunities for public and agency review and input.
c) The Municipality will monitor development activity and maintain an inventory of vacant designated lands categorized according to their servicing status and stage in the planning approvals process.
2.5.8 Identification of Growth Areas
In conjunction with the five year review of the Official Plan, Council will consider expansion or adjustment to the Urban Growth Area where there is a demonstrated need for additional lands and where such expansions are in keeping with all applicable Official Plan objectives and policies, provincial policies and the following criteria:
a) The amount of land to be added as urban growth area will have regard to the approved projected land requirements and to time cost-efficient areas of development over both the short and long terms.
b) Council will consider alternatives for the direction and sequencing of growth having regard for the comparative costs of providing infrastructure and services, the financial implications for the Municipality, the potential impacts to existing areas, and the effects on natural features and ecological functions and agriculture. Where practical and within its financial means, Council will distribute growth areas to provide greater choice in the location and character of new growth areas.
c) Proposed expansion areas represent a logical extension of the urban area having
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regard for the principle of maintaining a compact urban form and public open spaces.
d) Municipal water and sewer services can be provided in a timely and cost effective manner, in accordance with the Growth Management Policies.
e) Growth will be directed to areas that can be appropriately integrated with existing or planned communities or to areas of sufficient size to support a full range of uses, where possible.
f) Growth will be allocated to areas that can be adequately integrated with and accessed from the network of existing and planned arterial roads.
g) Expansion to the Urban Serviced Area onto prime agricultural lands will only be considered where there are no reasonable alternatives which avoid prime agricultural areas or which would be accommodated on lower priority agricultural lands.
h) Growth should avoid lands with constraints due to natural or man made hazards and significant natural heritage features.
i) Council will protect employment areas to support the longer-term economic development of the Municipality. Council will only permit the conversion of employment areas to other uses where it has been demonstrated through a comprehensive review that the land is not required for employment purposes over the long term and that there is a need for conversion.
2.5.9 Applications to Expand the Urban Growth Area
The primary means for reviewing the adequacy of the Municipality’s land supply and expanding the urban growth area, if warranted, will be the five year review process. It is recognized that emergent opportunities may present themselves in the interim and that these should be evaluated according to the criteria for the identification of growth areas. Privately initiated applications for amendments to the Official Plan to expand the Urban Serviced Area will be evaluated for public benefit on the basis of Policy 2.5.8 and the following criteria:
a) the need for urban growth at the proposed location and the reasons why a comprehensive review of the Urban Serviced Area is necessary in advance of the five year Official Plan review process;
b) the costs and benefits of permitting growth at the proposed location;
c) cross-jurisdictional issues; and
d) the implications for the Municipality’s supply of vacant land designated for growth, having regard for the Municipality’s intent that the inventory of vacant designated land be maintained for a 20 year supply.
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2.6 Environmental Planning
2.6.1 Introduction
In the 2006 North Grenville Strategic Plan, Improve the Quality of the Natural Environment is identified as a strategic priority. There are three dimensions to environmental policies in this Plan. First, North Grenville is committed to sustaining its rich natural heritage. Second, North Grenville must be safe from natural and human- generated hazards. Third, to ensure a sustainable future, the Municipality is committed to conserving natural resources through sound stewardship and best management practices.
2.6.2 Natural Heritage
Natural Heritage features are very prominent within North Grenville. There are large areas of wetlands adjacent to the Rideau River and the South Branch of the Rideau River (Kemptville Creek), which support numerous species of wildlife including: birds, waterfowl, otters, beaver, water shrews, etc. There is a wide variety of aquatic life including several species of fish, amphibians and aquatic snails. The dam at Oxford Mills provides a spawning area for carp and prevents them from moving upstream into the upper riverine wetlands. All of these indicators point to the importance of wetlands to the ecology of the Municipality.
The wetlands in the Municipality are broadly interconnected, and wooded habitats form a network across most of the area. Roads, and the strip development of houses along them, can form narrow barriers to the movement of species with poor dispersal abilities. Successional forests will provide forest cover allowing wider dispersal of species.
Preserving shorelines and riparian vegetation adjacent to shores and wetlands will serve as habitat for many organisms, corridors for the movement of others, and nurseries for aquatic and upland species.
Naturally vegetated areas, natural features, corridors and ecological functions, mostly associated with the Municipality’s woodlands, wetlands and waterways, form that basis of a natural heritage system for North Grenville.
The significant natural heritage features are delineated on Schedule ‘A’ and Schedule ‘B’ and are designated Natural Heritage. Other natural areas may be added to the Natural Heritage designation if warranted on the basis of future studies and are identified on Appendix ‘A1’ – Natural Heritage and Constraints. The Municipality will seek to maintain, restore and improve the quality of Natural Heritage features over the planning period by strengthening linkages and mitigating the negative impacts of development.
The connection between natural heritage resources is an important ecological feature which has yet to be analyzed or studied in North Grenville. The concept of “natural heritage systems” is important to the long term sustainable function of the natural heritage resources of the area. To this end, the Municipality will cooperate with senior levels of government and the Conservation Authorities to analyze and study connections between natural heritage features to help define the natural heritage systems in a meaningful way.
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The Natural Heritage features are also an important recreation and aesthetic resource for the Municipality. The Rideau River and South Branch of the Rideau River (Kemptville Creek), in particular, are closely linked with the Municipality’s history and identity. It is a patchwork of public parks and recreational areas, private open space, natural areas and public infrastructure. This multifunctional role of these waterways will continue to be supported by the Municipality over the long term.
The Land Use Policies associated with the Natural Heritage are found in Section 6.
2.6.3 Environmental Goal
It is a goal of this Plan to:
a) Promote a healthy natural environment in North Grenville;
b) Protect and enhance the Natural Heritage features for the benefit of present and future generations in North Grenville;
c) Reduce risk to public health and safety from natural and human generated hazards; and
d) Conserve natural resources for the benefit of present and future generations.
2.6.4 Environmental Strategies
Council will consider the following strategies in the pursuit of the “Green” Vision Statement and Environmental Goal:
2.6.4.1 Natural Heritage
a) The Municipality will promote an ecosystem approach to environmental planning. An ecosystem approach to environmental planning means:
The ecosystem is defined as a community of living co-existing organisms and the non-living physical and chemical environment in which the community lives. Thus, there is a constant interaction and interdependence between the living and non-living components of the ecosystem. The dynamics of the environment allow for variations in key factors. Indeed, one attribute of an ecosystem is that it is constantly changing.
The concept of an ecosystem can be applied at any level of scale – a wetland, a tributary, or the entire watershed. The ecosystem approach is particularly applicable to land and water management studies because it integrates physical, chemical and biological information, so all of the factors are considered at each scale, in assessing overall environmental quality.
Recognizing that natural heritage areas are valued for the natural features they contain and the ecological functions they perform, the Municipality will utilize environmental impact studies and guideline documents to ensure that natural
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heritage areas are evaluated and protected, both individually and cumulatively, as part of an interrelated Natural Heritage System. b) The Municipality shall encourage a net gain in environmental quality through the implementation of the Official Plan. The Municipality shall develop and implement monitoring programs to measure changes in environmental quality and assess the effectiveness of the Official Plan’s environmental goal, objectives and policies. c) The Municipality shall promote the rehabilitation of degraded ecosystems throughout the Municipality and support appropriate rehabilitation works identified through the Watershed and/or Sub-watershed Studies, or other environmental studies. Rehabilitation works may be undertaken in co-operation with landowners and other agencies and interest groups. d) The Municipality recognizes the South Branch, the Rideau River, and their tributaries, as its most important natural, cultural, recreational and aesthetic resource. The Municipality shall work with Parks Canada, the RVCA and the Algonquins of Ontario to prepare and/or implement specific Plans for these waterways to optimize the multi-functional role of these waterways in the Municipality over the long term future. e) The Municipality acknowledges the provincial policy statement which requires the identification and protection of significant valleylands. Given the topography of North Grenville, the Municipality is of the opinion that there are no significant valleylands within its jurisdiction. Should there be information provided to the Municipality by senior levels of government which indicates that there are significant valleylands within its jurisdiction which are not protected by the existing policies within this Plan, the Municipality shall work with those senior levels of government to implement the appropriate mapping and policies within this Plan. f) The Municipality shall encourage, support and initiate, as appropriate, public education and awareness initiatives for the protection, rehabilitation and enhancement of the Natural Heritage features. g) The Municipality shall, in consultation with other agencies and groups, including the Algonquins of Ontario, identify and promote appropriate non-regulatory measures, such as land trust and land stewardship initiatives, which will support the natural heritage objectives and policies contained in this Plan. h) The Municipality will encourage innovative development patterns and techniques which support and strengthen the Natural Heritage features. i) The Municipality may require that any planning processes or studies involving the identification or evaluation of Natural Heritage System components include pre- consultation with the appropriate agencies.
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2.6.4.2 Hazard Protection
a) The Municipality shall minimize the risk to public safety and to property by restricting development within areas identified by the Conservation Authorities as being susceptible to natural hazard processes, such as flooding and erosion. New development shall avoid natural hazards, and redevelopment will be required to properly characterize and properly mitigate the natural hazard.
b) The Municipality may encourage the use of floodplain lands for passive recreational uses which do not involve buildings or structures and may acquire floodplain lands for these purposes. The acquisition of lands subject to natural hazards shall not be considered as part of the park land dedication required under parkland dedication sections of the Planning Act.
c) To reduce the risk to public safety and property due to erosion and slope instability, the Municipality, in cooperation with the Conservation Authority having jurisdiction, shall ensure that development avoids natural hazards and that the natural hazard processes are allowed to occur naturally, or are mitigated in cases where existing development is at risk.
d) To reduce the risk to public safety and property due to riverine flooding, the Municipality, in cooperation with the Conservation Authority having jurisdiction, shall ensure that floodplain storage and conveyance processes are maintained.
e) The Municipality shall restrict development in the vicinity of human generated hazards, such as suspected contaminated sites and closed landfill sites, until it is demonstrated that such development does not cause unacceptable risk to public health and safety.
f) The Municipality shall ensure that development involving uses that are sensitive to noise, air emissions or odour impacts is appropriately protected from sources such as operating landfill sites, transportation corridors, airports and sewage treatment plants.
2.6.4.3 Energy Conservation and Air Quality
a) The Municipality shall promote energy conservation and improved air quality by:
i. initiating, participating, and cooperating in energy conservation and air quality improvement programs, including public education and awareness; ii. encouraging denser, contiguous development: intensification of existing built-up areas and the efficient use of existing infrastructure; iii. incorporating energy conservation measures into site design, and into the design, construction and renovation of buildings; iv. encouraging the use of walking, bicycling, transit, and car pooling as alternatives to private automobile use; v. encouraging the planting of native trees; vi. improving the mix of employment and housing uses to shorten commute journeys;
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vii. promote design and orientation of subdivisions and developments, which maximize the use of alternative or renewable energy systems, such as solar and wind energy, at appropriate locations.
b) The Municipality will develop an energy conservation and air emission reduction strategy to:
i. minimize energy use and expenditures for buildings, vehicles and equipment owned and operated by the Municipality; ii. reduce energy use and expenditures for the operation of water supply and sewage treatment systems; iii. promote multi-sector, community-wide reductions; and iv. promote the development of alternative and renewable energy systems.
2.6.4.4 Water Conservation
a) The Municipality shall promote conservation by:
i. initiating, participating, and cooperating in conservation programs, including public education and awareness programs; ii. developing water efficiency and conservation strategy for the Municipality; iii. encouraging denser contiguous development, intensification of existing built-up areas and the efficient use of existing water/sewerage infrastructure; iv. encouraging the reuse and multiple uses of treated water, including storm water; and v. encouraging the planting of native trees, shrubs and other ground vegetation for temperature reduction and infiltration.
2.6.4.5 Waste Reduction
a) The Municipality shall support the reduction, reuse, recycling and recovery of materials from waste by:
i. initiating, participating, and cooperating in conservation programs, including public education and awareness programs; ii. cooperating with surrounding municipalities to develop a long term strategy to reduce, reuse, recycle, and recover materials from recycled waste, and to address available technologies for the use and/or disposal of waste, including septage; iii. reviewing development proposals which may potentially generate and store hazardous waste and ensuring that the location and operation of such developments will not adversely affect the health and safety of the public and the natural environment; and iv. encouraging development proposals to provide adequate waste disposal, recycling and composting facilities, and support innovative waste collection and diversion programs.
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2.7 Heritage, Urban, Hamlet and Rural Design
Heritage structures, streetscapes, landscape, open spaces and historical and archaeological resources contribute to the cultural identity of North Grenville, and its traditional settlement areas, and to the quality of life that is enjoyed by its residents. These resources are an important component of community character and built form. New buildings and private and public open space development also contribute to the built form and appearance, and the design of buildings and spaces is important not only to their functionality, but also to the appearance and liveability of the community within which they are located.
2.7.1 Heritage Goal
It is a goal of this Plan to promote the conservation of North Grenville’s historical, architectural, archaeological, cultural and natural heritage resources and to enhance the contribution of these resources to the form and character of the Municipality.
2.7.2 Urban Design Goal
It is a goal of the Official Plan to promote a high standard of architectural, landscape and community design that is sensitive to the character of the surrounding uses and streetscapes, conducive to pedestrian accessibility, safety, circulation and use, and that provides for the protection of significant natural features.
2.7.3 Hamlet Design Goal
It is a goal of the Official Plan to promote a high standard of architectural, landscape and community design that is sensitive to the character of the surrounding uses and streetscapes, conductive of pedestrian accessibility, safety, circulation and use, and that provides for the protection of significant natural features.
Council will consider the completion of Secondary Plans for existing undeveloped or substantially underdeveloped Hamlets. The Secondary Plan will identify areas for housing, commercial, institutional and leisure activities within a development pattern that respects the character of the area.
Specifically, this Plan supports the creation of a Secondary Plan for Burritt’s Rapids in collaboration with the City of Ottawa and Parks Canada prior to considering any new subdivision development proposals within the Hamlet.
2.7.4 Rural Design Goal
It is a goal of the Official Plan to conserve the rural character of its rural areas and to limit non-compatible development.
2.7.5 Heritage Strategies
Council may implement the following strategies in pursuit of its Heritage Goal:
a) identify heritage resources and establish priorities for their protection and
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acquisition;
b) promote public awareness of heritage resources and values, encourage owner interest in the protection and improvement of identified heritage resources;
c) maintain a Heritage Advisory Committee;
d) undertake an Archaeological Master Plan;
e) incorporate heritage resource identification and impact evaluation into the preparation and review of major development applications and plans of subdivision within the urban area.
2.7.6 Urban Design Strategies
Council may implement the following strategies in pursuit of its Urban Design Goal:
a) achieve a high standard of design in municipal projects;
b) prepare urban design guidelines, in consultation with stakeholders and the public that are appropriate for North Grenville which could be specific for certain areas of the Municipality, and which would be implemented through the site plan approval process.
2.7.7 Hamlet Design Strategies
Council will consider the following strategies in pursuit of its Hamlet Design Goal:
a) achieve a high standard of design in municipal projects;
b) prepare hamlet designs that are appropriate for North Grenville which could be specific for certain hamlets of the Municipality, and which would be implemented through the site plan approval process.
2.7.8 Rural Design Strategies
Council may implement the following strategies in pursuit of its Rural Design Goal:
a) limit development to existing lots of record, limited rural severances and cluster lot developments;
b) preserve features (buildings, silos, natural topography, vegetation, etc.) that create a sense of rural character.
c) prepare rural designs that are appropriate for North Grenville which could be specific for certain hamlets of the Municipality, and which would be implemented through the site plan approval process.
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