St. Philip`s Background Report for Municipal Plan and Development

Transcription

Prepared for
Town of
Portugal Cove – St. Philip’s
Background Report for
Municipal Plan and
Development Regulations
Prepared by
SGE Acres Limited
September 2006
Municipal Plan and Development Regulations
Table of Contents
1
Introduction.....................................................................................1-3
1.1 Background .............................................................................. 1-3
1.2 Legislative Requirements ......................................................... 1-3
1.3 Plan Preparation Process .......................................................... 1-6
2
The Town Setting and Current (2000) Plan ...............................2-13
2.1 Introduction ............................................................................ 2-13
2.2 The Historic Context .............................................................. 2-13
2.3 The Current Setting ................................................................ 2-14
2.4 The Current (2000) Plan......................................................... 2-16
3
Summary of Key Findings.............................................................3-1
3.1 Community Consultations and Vision ..................................... 3-1
3.1.1 Sector Meetings........................................................... 3-1
3.1.2 Neighbourhood Workshops......................................... 3-3
3.1.3 Other Consultations..................................................... 3-7
3.1.4 Vision ........................................................................ 3-7
3.2 Town’s Financial Resources and Capabilities.......................... 3-9
3.3 Town Infrastructure and Services........................................... 3-10
3.3.1 Water Supply and Distribution.................................. 3-11
3.3.2 Sanitary Sewer Collection ......................................... 3-11
3.3.3 Storm Sewer System ................................................. 3-12
3.3.4 Police Services .......................................................... 3-14
3.3.5 Fire Protection Services ............................................ 3-15
3.3.6 Power and Communications...................................... 3-15
3.3.7 Solid Waste Collection and Disposal ........................ 3-16
3.3.8 Municipal Parks and Recreation................................ 3-16
3.3.9 Education Facilities ................................................... 3-17
3.3.10 Transportation ........................................................... 3-18
3.4 Heritage and Culture .............................................................. 3-20
3.5 Recreation............................................................................... 3-23
3.6 Physical Setting and Environmental Assets ........................... 3-24
3.7 Population............................................................................... 3-25
3.8 Economic Base ....................................................................... 3-31
3.9 Housing and Land Development............................................ 3-32
3.10 Summary ................................................................................ 3-34
4
Conclusions and Recommendations ..........................................4-1
4.1 Recommended Guiding Principles For The New Plan............. 4-1
4.2 Recommended New Plan Framework Options ........................ 4-2
4.2.1 Option 1: Managed Growth Strategy .......................... 4-3
4.2.2 Option 2: Market Leader Strategy............................... 4-3
4.2.3 Option 3: Market Leader with Controlled Growth
Strategy........................................................................ 4-4
4.3 Next Steps ................................................................................ 4-4
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List of Exhibits
Exhibit 3.1
Neighbourhood Workshops Key “Likes” Findings
Exhibit 3.2
Neighbourhood Workshops Key “Planning Related
Challenges” Findings
Exhibit 3.3
Summary of Consultation Findings
Exhibit 3.4
Portugal Cove – St. Philip’s Financial Position: 2006
Exhibit 3.5
Population Change – 1996 to 2001
Exhibit 3.6
Population Projections
Exhibit 3.7
2001 Population Age Breakdown
Exhibit 3.8
Mobility – 1996 to 2001
Exhibit 3.9
Educational Attainment Comparison
Exhibit 3.10
Labour Force Indicators
Exhibit 3.11
Labour Force Comparison By Occupation (Percentage)
Exhibit 3.12
Housing Starts in Portugal Cove – St. Philip’s and the St.
John’s CMA
Exhibit 4.1
New Plan Options
List of Maps
Map 1
Map 2
Map 3
Map 4
Map 5
The Town Setting
Neighbourhood Workshops
Current Town Zoning
Services and Slope Analysis
Special Features
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1 Introduction
1.1
Background
In 2006, the Town of Portugal Cove - St. Philip’s started the process of
preparing a new Municipal Plan and Development Regulations pursuant to
Section 13 of the Newfoundland and Labrador Urban and Rural Planning
Act. SGE Acres Limited, a member of the Hatch group of companies, was
retained by the Town to facilitate the preparation of the new Plan.
This report presents the background analysis and community consultation
findings to September 2006, as required elements of the new Plan
preparation process. The report is presented in four sections: Introduction,
The Town Setting and Current (2000) Plan, Summary of Key Findings, and
Conclusions and Recommendations.
1.2
Legislative Requirements
The new Plan will contain policy and proposal statements in accordance with
Section 13 of the Urban and Rural Planning Act and in conjunction with this
Background Report and the Town’s Five-Year Capital Budget.
The new Plan must focus on those functions that are permitted under the
Urban and Rural Planning Act.
The Municipal Plan shall:
a) include a statement of the objectives of the plan;
b) indicate the policies to be implemented under the plan;
c) divide land into land use classes and the use that may be made in each
class and shall include prohibited uses of land;
d) include proposals for land use zoning regulations;
e) include proposals for the implementation of the plan;
f) provide provisions with respect to non-conforming uses; and
g) provide for the development of the planning area for a 10-year period.
Additionally, as established in the Act, a plan may with respect to a
planning area:
a) describe and determine the physical, economic and social
environment;
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b) describe existing and proposed transportation networks and proposed
networks of streets;
c) establish areas for comprehensive development;
d) propose the phasing in of development;
e) establish a program of public works;
f) provide for the protection, use and development of environmentally
sensitive lands;
g) provide for storm water control and erosion control;
h) provide for the protection, use and development of natural resources
and for the prevention of natural resource development with
incompatible negative impacts;
i)
provide for the excavation, filling in or reclamation of land;
j)
provide for the non-removal of trees and vegetation and for other
environmental matters including requiring that environmental studies
be carried out prior to undertaking specified developments;
k) provide for the height and siting of developments;
l)
provide for the use and conservation of energy;
m) provide for and recommend the attraction, location, development and
diversification of economic activity;
n) provide for garden suites and back lot development;
o) establish locations, provisions for and policies with respect to housing
and facilities for senior citizens; and
p) make other proposals that in the opinion of the Town Council or
regional authority are necessary.
Section 14 of the Act calls for public consultation prior to adoption of the
Municipal Plan and Development Regulations by Town Council.
Consultation opportunities must be provided for interested persons,
community groups, municipalities, local service districts, regional economic
development boards and the departments of the government of the province.
After consultation, Town Council may complete the proposed Plan and
Development Regulations and submit the relevant documents to the Province
for review.
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Map 1 The Town Setting
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1.3
Plan Preparation Process
The Urban and Rural Planning Act and the Department of Municipal Affairs
do not specify the steps to follow when preparing a new Plan. In this setting,
Town Council selected a four-phase approach. The phases are:
1. Orientation
2. Community Consultations
3. Analysis of Background Conditions
4. Preparation of Municipal Plan and Development Regulations.
The consultation and media program was ongoing throughout the new Plan
preparation process. This program began with meetings between SGE
Acres, Town Council and Municipal Staff in June 2006. Targeted
community sector meetings were held on July 18, 19 and 20, 2006. Each of
the three meetings was designed to gain insight into particular aspects of the
Town and included invited attendees. Specifically, the focus of each meeting
was:
July 18 –Culture/Heritage, Recreation and Environmental Concerns
July 19 –Commercial Enterprise, Business and Land Development
July 20 – Agriculture and Open Topics.
Community Workshop meetings were also held from September 19 to 21,
2006 with the Town broken down into nine neighbourhoods as defined in
Map 2.
All of these meetings were advertised and a 1-800 number and email address
were also set up to receive comments. A list of residents who attended the
meetings and provided their names for the record are included at the end of
this section. In addition to the formal meetings, two public newsletters and a
questionnaire was distributed throughout the Town.
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Map 2 Neighbourhood Workshops
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Endnote: List Of Sector Meeting Attendees
1. Pat Pender
2. Charles Harris
3. Linda Churchill
4. Erin Churchill
5. Bill Fagan
6. Doug Nerry
7. Janet Kelly
8. Loyola Hall
9. Darnell Butler
10. Bill Butler
11. Cal Ollerhead
12. Cam Hall
13. Gerry Hall
14. Richard Gladney
15. Janet Montevecchi
16. John Seary
17. Diane Seary
18. Joyce Churchill
19. Trent Squires Ruelokke
20. Len Norman
21. Kevin Aucoin
22. John Jay
23. Robin McGrath
24. Marlene Creates
25. Bill Rose
26. Johnny Hanlon
27. Allison Redding
28. Winston Fiander
29. Donna Clouston
30. Kevin Hueo
31. Juanita Mason
32. Karen Thorne (Rev)
33. Robert O’Brie
34. Janey Kelly
35. Michael Murray
36. Rachel Whitby
37. Jennifer Dwyer
38. Shirley Squires
39. Angie West
40. Gilbert Squires
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Endnote: List of Neighbourhood Workshop Attendees
Neighbourhod #1
Marlene Creates
Kathryn Wellborn
Rob Brown
Elizabeth Coachman
Mike Coachman
Dave Linfield
Doreen Stewart
Valerie Rose
Anthony Griffiths
Robin James
Anastani Day
Johnny Hanlon
Jane Norman
Greg Cotten
Jim Neary
Mary House
Scott Whalen
Katie Parnham
Colin Story
Neighbourhood #2
Kurt Campbell
Jeff Lanham
Jim Harding
David Kennedy
Lucy Kennedy
Darrell Butler
Freeman Churchill
Steve Winter
Eleanor Winter
Robert Guy
Charles Harris
George Combden
Wilfred Miller
Boyd Perry
Dan Brown
Neighbourhood #3
Diane Whalen
Bob Kelley
Charlene Guirey
Bill Fagan
Ed Gladney
Frank Power
Kurt Campbell
Brin Foley
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Doug Neary
Palma Mercer
David Mercer
Jim Gladney
Jeff Pierey
Susan Moore
Rick West
Neighbourhood #4
Peter Tobin
E Cladney
Doug Neary
Michael Murney
Brea Murry
Neighbourhood #5
Rita Anderson
Dean Foote
Darlene Foote
Derrick Berghans
Elizabeth Berghans
Pete Lemessurier
Ariana Lemessurier
Amelia Hicker
Rick Hicker
Sherry Eddy
Yvonne Samson
Wanda O’Reilly
Jim Neary
Mary House
Allan Stein
Felicity O’Brian
Cathy Smallwood
Tracy Bridger
Russ Adams
Rosemary Atherton
Paul Duffett
Linda Cohen
Tom Cohen
Pat Pender
Neighbourhood #6
Greg Parsons
John Pottle
Gary Hedder
Dave King
Janet Kelley
Joan Redden
Dave Redden
Moses Tucker
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Mark Tucker
Helen Goodridge
Sue Murray
Rob Strong
Emily Strong
Jim Austin
Julie Huntington
Jill Mitchell
Vera Mitchell
Joan Bantleman
Jon Seary
Nick Seary
Kevin Aucoin
Jane Aucoin
Gary Case
Carol Paddock
Jack Evans
Michael Crombie
Jane Crombie
Janet Crellin
Brenda Burnes
Bill Marshall
Sandy Oke
Carol Mercer
Neighbourhood #7
Alfred Marshall
Winston Finder
J.K. Crelyn
Pat Banzhaf
Walter Banzhaf
Wally Penney
Jane Tucker
Amy Tucker
Gerry Amey
Dennis Sharpe
Neighbourhood #8
Karen Squires
Bobbie Bailey
Eric Walsh
Ian Munn
Karen Fifield Munn
Rod Windsor
Alex J. Harding
Gerry Tucker
Neighbourhood #9
Gail Tricco
Gus Etchegary
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Roland Inapen
Beula Inapen
Cathy Eastwood
B. Puxley
G. Beckett
Brenda Quinlan
Dean Wither
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2 The Town Setting and Current (2000) Plan
2.1
Introduction
The current Plan was adopted in 2000 with the supporting Development
Regulations also adopted in 2000 with amendments to 2005. This section
reviews the Town’s historic and current setting and possible changes that
could be considered by Town Council for the new Plan.
2.2
The Historic Context
Although information is limited, archeological sites signifying the presence
of the Beothuk Peoples have been excavated in various places on the Avalon
Peninsula and indicate that the entire area was likely home to Aboriginal
Peoples for many centuries. Early European use of the area of Portugal Cove
– St. Philip’s by Portuguese fishermen is reflected in the Town’s name and
dates from around 1500 when Gasper Corte Real landed in Portugal Cove to
bury two of his men who had died during the voyage from Lisbon. French
ships raided Conception Bay in 1696 and made note that three permanent
residents were living in Portugal Cove at that time. St. Philip’s (formerly
Broad Cove) was settled over 200 years later with the first permanent
inhabitants arriving from England in approximately 1750.
The modern day Portugal Cove Road (see Map 1) is one of the oldest roads
in the Province and the oldest overland route outside of St. John’s used by
European settlers. Beginning as a footpath used by fishermen to transport
their catch to the capital city for sale, by the 1800s a movement was
underway to have the route designated a proper road. In 1811, a road was
constructed and became a provincial transportation route to nearby Bell
Island after iron ore mining began there in the 1890s. During times of peak
production in the first half of the twentieth century, the Bell Island mines
provided a major source of employment for Portugal Cove residents until the
last undersea mine was closed in 1966. Portugal Cove Road remains a vital
and well used community link to and from the City of St. John’s and beyond.
As is evident from the current road network within the Town, many travel
routes began in much the same way as Portugal Cove Road. The road
network follows the curves and elevation changes of the land while
connecting communities along the coast and further inland based on
traditional travel corridors along shorelines, valleys and uplands. The same
historic context is also evident in the traditional older areas of the community
in terms of housing lot layout and overall residential form. As in many
coastal Newfoundland communities, the original inhabitants clustered work
and living areas around the shelter of a cove while generally ignoring many
inland building sites in favor of shorter travel times to the ocean and
community centre.
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The community maintained this close connection to the sea for centuries with
fishing being a significant industry for many people until recent years. A
fish processing facility is currently located in Portugal Cove. It is operated
by New Found Foods while the overall number of people involved in the
industry as a primary source of employment is now quite low. Agriculture
has also been a long established mainstay of the local economy as lands
mostly in the interior of the Town have been farmed for generations and are
still provincially designated agricultural lands under the St. John’s Urban
Regional Agriculture Development Area Regulations. A review of the ADA
was ongoing while this report was prepared.
2.3
The Current Setting
The Town consists of approximately 5,970 hectares (14,750 acres). Its
current land uses, and the supporting infrastructure and services, are framed
by early informal European settlement patterns, topography, ground
conditions and land transportation routes. Most main roads developed in
response to desired movement corridors between communities such as
Portugal Cove and St. John’s (Portugal Cove Road) and St. Philip’s and St.
John’s (Thorburn Road) and generally follow routes the responded to the
natural topography and lay of the land to provide the easiest link for draft
animal and foot traffic.
In addition to the above mentioned roads, other main transportation routes in
the Town include: St. Thomas Line that allows access to the Town of
Paradise to the south, Tuckers Hill Road and Beachy Cove Road which
together form the only link between Portugal Cove and Broad Cove running
near to the Conception Bay shoreline, Old Broad Cove Road and Witch
Hazel Road which link Portugal Cove Road, Tuckers Hill Road and Beachy
Cove Road through the internal parts of the Town, Indian Meal Line which
accesses the Town of Torbay to the north and Bauline Line which links with
destinations such as Pouch Cove at the northern end of the Avalon Peninsula.
The Town’s southeastern boundary includes the protected Windsor Lake
Watershed which is shared with the City of St. John’s and a significant
length of coastline to the west along Conception Bay. Picturesque views of
Conception Bay as well as Bell Island can be had at various sections of the
route (Beachy Cove Road) from St. Philip’s to Portugal Cove as well as from
the older sections of the community in Portugal Cove and Broad Cove.
Limited commercial, recreational and civic uses are located on Thorburn
Road interspersed with residential areas of varying ages and design styles.
Portugal Cove Road contains some commercial areas as well, mixed with
traditional and new residential developments. Agricultural lands make up
significant areas of the Town mostly located to the east of Nearys Pond and
on either side of Indian Meal Line.
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Considerable lands bordering Bauline Line and the Town’s northernmost
sections between Bauline Line and Conception Bay remain undeveloped and
in many cases inaccessible by road because of topography. Portions of this
area were intentionally left undeveloped due to the Town’s former water
supply being located around the Blast Hole Ponds. The remainder of this
part of Town has no historic development pattern due to the lack of neither
comparably attractive farmland nor easy access to sheltered coves along the
coast.
All other areas of the Town are primarily residential and include
neighborhoods differentiated by ages and building styles, lot size and
community layout.
From a land use perspective, an important feature of Portugal Cove - St.
Philip’s is the lack of a traditional “downtown” or commercial core area
because of close proximity to regional type shopping and services in St.
John’s and Mount Pearl. Some commercial clustering has occurred on
Thorburn Road near to the Town Hall and Rainbow Gully Recreation Park
but no core for a growing community of 6,600 residents currently exists.
Older developments are centered around Portugal Cove and Broad Cove with
limited commercial clusters extending along Portugal Cove Road and
Thorburn Road respectively. With many Town residents working in St.
John’s, new subdivisions are increasingly located away from traditional hub
areas. This pattern of retail sales occurring outside of the Town (sales
leakage) and the use of leisure services in St. John’s has accelerated in recent
years as new subdivisions and residential developments are built primarily as
“bedroom communities” for residents who work and conduct business in St.
John’s.
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2.4
The Current (2000) Plan
SGE Acres reviewed the 2000 Plan and concluded that many goals are
outdated and permitted land use must be updated.
Many Goals Are Outdated
The 2000 Portugal Cove - St. Philip’s Municipal Plan identified eight longerterm goals for the community. They included:
1. Community Structure and Character – “To encourage a growth structure
for Portugal Cove – St. Philip’s that will ensure orderly development,
economic use of municipal services and compatibility between land uses.”
“To maintain a rural character for Portugal Cove – St. Philip’s”
These goals are still relevant, but must be revisited in the context of
conditions beyond 2015. The effective integration of appropriate new
development with the “rural character” of the community must be addressed
under the new Plan.
2. Housing – “To provide for an adequate quality, quantity and mix of
housing to serve the needs of the present and future population.”
As identified in various community consultations, this goal should be revised
in the new Plan. The focus should be the location, amount and type of new
housing that retains the Town’s rural character and lifestyle.
3. Environment – “To provide for the health, safety, welfare and enjoyment
of the general public.”
This goal of the 2000 Plan mostly focused on protecting certain
environmental assets from degradation. Under the new Plan, environmental
goals should be expanded and updated to address “smart growth” that
effectively integrates new land uses, community recreational needs and the
accessibility of natural community features to the general public.
4. Transportation – “To provide an efficient transportation network to serve
the future needs of Portugal Cove – St. Philip’s.”
With an aging population and a growing desire for less structured
recreational activities, the idea of efficient transportation networks must be
expanded beyond traditional automobile traffic to include non-motorized
options (termed active transportation) such as walking and cycling.
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5. Economy – “To encourage diversified and balanced economic growth,
and promote the development of additional employment opportunities.”
Healthy economic growth is a goal of all municipalities. With technological
advances, a changing economy and many residents of the Town working and
shopping elsewhere, the new Plan must provide workable opportunities for
commercial tax base growth. This growth is vital to the Town’s longer-term
ability to fund programs and services that meet the needs of a growing and
aging population that will see more residents transition from earned income
to a fixed income lifestyle based around government sources and investment
income.
6. Recreation and Tourism – “To upgrade existing recreation facilities and
develop new facilities to accommodate all major age groupings in an
expanding population.”
Recreation facilities and tourism infrastructure must reflect changing
conditions. The findings of the Parks and Recreation Master Plan by Tract
Consulting will frame recreation inputs to the new Plan while changing
tourism market conditions will define non-resident requirements.
7. Capital Works – “To provide an acceptable and consistent level of water,
sewer and storm sewer services to residents of the Town which permit
maximum development and usage of available land.”
The Town’s modern water and sanitary storm sewer system now covers
almost 815 hectares (2,010 acres) while upgrades to the storm water system
are still required. The new Plan must include appropriate capital works
programs to support the selected land use strategy.
8. Municipal Finance – “To manage municipal expenditures and revenues so
as to provide municipal services within a framework of long-term financial
stability.”
This goal should be updated to focus on efficient debt load management, and
revenue generation through expansion of the economic base (commercial and
residential).
Land Uses Must Be Updated
Under the 2000 Plan, the intent of Town Council was carried out by the
Zoning Map which defines permitted uses for all lands within the Town.
The map defines the current zones as:
• Residential – Medium Density, Infill, Rural and Coastal
• Development Scheme Area
• Heritage Community
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•
•
•
•
•
•
•
•
Mixed Development
Light Industry
Public Use
Recreation/Open Space
Conservation
Watershed
Agriculture
Rural.
While the Town appears large, Map 3 reveals that less than one-third of the
community (1,940 hectares or 4,795 acres) is available for urban-type
development under the 2000 Plan. Areas that do not permit or significantly
restrict urban development are:
2000 Plan Designation
Agriculture
Water Bodies
Watersheds
Conservation
Recreation/Open Space
Public Use
Rural
TOTAL
% of Town
13.26%
5.38%
2.47%
1.23%
0.80%
0.21%
44.15%
67.50%
The new Plan should assess the suitability of the current zones and permitted
uses in each classification. The 2000 Plan’s approach separates land uses,
limits mixed use areas and neighbourhoods, and does not place a priority on
concerns such as the preservation of unique natural and community features,
or flexibility to accommodate the desires of residents to operate suitable
home- based businesses.
In addition to dimensional zoning controls such as building height and
property line setbacks, the 2000 Plan contains a list of specific land uses
within each designated zone that require different types of Town approval.
They include:
• Permitted Use Classes (as of right in compliance with regulations).
• Discretionary Use Classes (at the discretion of the Authority).
Uses not listed in either of the above two categories are considered to be
prohibited. The 2000 Plan’s list of permitted, discretionary and prohibited
uses must be revisited in the new Plan.
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Map 3 – Current Town Zoning
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3 Summary of Key Findings
Research undertaken for the Background Report is summarized in this
section. Community input was gained during sector meeting in July 2006,
with additional public involvement to September 2006.
3.1
3.1.1
Community Consultations and Vision
Sector Meetings
From July 18 to 20, 2006, sector meeting were held with community
interests to gain insight into local issues focused around their respective
fields and areas of concern. Topics covered over the three evenings were:
July 18
July 19
July 20
Culture/Heritage, Recreation and the Environment,
Commercial Interests, Land Development and Business, and
Agriculture and Open Topics.
Participants recognized that Portugal Cove – St. Philip’s is facing increasing
pressure from residential developments and transitioning away from the two
smaller communities of the past toward a future which includes newer
housing types, an influx of new residents and a changing local economy. In
this setting, participants stated the new Plan should:
• Address the need for environmental stewardship of local water resources
and open spaces,
• Facilitate the proper integration of commercial, agricultural and industrial
land uses,
• Seek clarity in governance of land use issues, and
• Provide for the preservation of the community’s traditional rural character.
Individual comments from group members are provided in each section
below in order of occurrence. Generalized action themes to be considered
under the new Plan were drawn from comments at the meetings and
presented to participants during each session for confirmation.
Culture/Heritage, Recreation and the Environment
Participants exhibited a high degree of community involvement and passion
about how the future of the Town should be planned. Overall, there was a
near consensus that environmental protection issues should be a priority for
the Town, as well as the preparation of policies and the development of
facilities that would permit a greater degree of access to natural amenities for
unstructured recreational pursuits such as walking, hiking and the use of
water bodies.
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Although the group was made up of representatives from various sectors,
most participants stated that policies and land use controls for heritage,
recreation and the environment should be integrated under the new Plan.
Attendees also expressed strong opinions that land development should be
effectively controlled to limit negative impacts on the existing community
and that the preservation of common assets such as views and vistas should
be an important element of the new Plan.
Four action themes (for consideration in the new Plan) emerged from
discussions at this meeting. They are:
1.
2.
3.
4.
Environmental stewardship.
Link the local economy with the environment.
Active Transportation (non-motorized movement).
Strategic leadership and governance.
Commercial Interests, Land Development and Business
Participants expressed a consensus opinion that Portugal Cove – St. Philip’s
is in a period of transition with increasing residential growth pressures
creating both opportunities and issues that need to be addressed in the new
Plan. It was stated by many participants that general business activities in
the Town need to be encouraged and controls adapted to take advantage of
growth opportunities and new economic realities such as e-businesses. At
the same time, attendees stated that traditional economic activities, homebased business and mixed-use commercial areas should be permitted within
the context of a rural economy with an emphasis on appropriate integration
with neighbourhoods. The issue of alternative uses in agricultural zones was
discussed with the general opinion that land owners should be permitted to
consider alternatives to agricultural activities within these areas.
Four more action themes for consideration in the new Plan resulted from this
meeting. They are:
• Allow traditional rural businesses (i.e. farmers markets).
• Encourage appropriate commercial development but respect residential
areas.
• Take advantage of current growth to build a commercial core.
• Address land development rights in agricultural zones.
Agriculture and Open Topics
The theme of land development rights on agriculturally zoned lands
continued in this meeting. There was an acknowledgement of the regulatory
role of the Province regarding agricultural zones and the limitations of the
Town to implement a different regulatory regime. In this context,
participants stated that the ADA zone restrictions were both outdated and
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inappropriate for current economic realities. Examples were provided of
how agriculturally zoned land owners are willing to adopt more nontraditional roles such as setting up farmers markets, considering organic
farms and becoming involved with agri-tourism.
The group stated that the Town is presently too dependant on St. John’s for
commercial services. While they favor increased commercial growth, the
layout and building design of new commercial sites should be high quality
and not negatively impact on surrounding lands. Overall, there was
recognition that environmental assets should be preserved, public
recreational opportunities such as trails should be developed and the
traditional rural look and feel of the Town should be maintained. Attendees
also noted that people of different economic and demographic backgrounds
should be afforded housing and possibly employment opportunities in the
Town. Housing options that were discussed by the group included cluster
developments and design guidelines that complement the historic
development pattern.
Three more action themes for consideration in the new Plan resulted from
this session. They are:
• Appropriate land integration between different uses.
• Unique local economy based on rural lifestyles.
• Promote business but preserve local culture and character.
3.1.2
Neighbourhood Workshops
The nine Neighbourhood Workshops (see Exhibit 1.2 for boundaries) were
held from September 19 to 21, 2006. Participants were provided with an
overview of the new Plan preparation process, key technical findings and
then asked to answer two questions:
1. What are the top three features or amenities of your neighbourhood?
2. What are the top three planning-related challenges?
Discussions in some workshops resulted in more than three features,
amenities or challenges being selected.
The workshop findings are summarized in Exhibits 3.1 and 3.2. Overall,
participants relate to both their neighbourhood and surrounding community.
They view themselves as part of the larger St. John’s region and accept the
need to travel outside of Portugal Cove - St. Philip’s to work or shop; as long
as their neighbourhood’s rural setting and heritage are retained.
Accessibility from neighbourhoods to urban services and the tranquility and
rustic beauty of the Town were identified as major features of the
community’s unique quality of life.
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The low density of development with surrounding spaces that include
walking trails and access to shorelines and water bodies are key physical
features that define many neighbourhoods. In Portugal Cove, this historic
neighbourhood brings a strong respect for the preservation of rural lifestyles
and traditions to the new Plan. These values were also reflected in
comments from other established neighbourhoods where liberal use of land
(while respecting neighbourhoods) was expressed as a core value and
important consideration for land use controls.
The benefits of a rural setting and lifestyle were expressed differently in each
neighbourhood. Overall, a lack of pollution and absence of city-type
commercial projects were identified as key amenities. Other positive
features stated by participants included child safety and unique heritage
buildings.
The challenges that emerged from discussions varied by neighbourhood but
followed several common themes. The dominant theme was the need for a
locally-based approach to “smart growth” that strives to:
•
•
•
•
•
•
Integrate new and old development.
Focus on environmentally sensitive approaches to new development.
Protect steep slopes, open spaces and water bodies.
Reach a balance between appropriate densities and development standards.
Apply flexible development standards so that rural lifestyles can flourish.
Ensure the community is safe (such as restricting hunting).
Another important theme is the need for an Active Transportation system for
non-motorized movement (walking, cycling, cross country skiing, etc.)
within the Town. This system should include improvements to road right-ofways as well as off-road multi-use trails. The preservation and protection of
key natural features reflects strong environmental stewardship values. View
protection and recreational use of shorelines were also identified as
considerations for the new Plan.
In many neighbourhood discussions, the topic of housing was discussed. A
theme expressed in these discussions is residents of the Town should be able
to “age in place” as they transition from young families to empty nesters and
then older residents that require varying forms of assisted living. This theme
will require the new Plan to consider locations for alternative housing for an
overall aging population.
The ADA designation for agricultural lands was also discussed. There is no
consensus opinion on agricultural land uses. Some agricultural interests
want the ADA designation retained with a buffer zone around the
agricultural zone to prevent adjacent land use conflicts. Other interests want
the agricultural zone reduced with more permissive uses.
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The ADA designation is a product of the St. John’s Region Regional Plan
which was approved in 1976 as a result of a Federal/Provincial Urban
Region Study and the Henley Commission of Inquiry. Amendments to the
Plan have been made but an extensive review has never previously been
undertaken. The preservation of prime agricultural lands is identified as one
of the major provincial interests addressed in the Regional Plan along with
the protection of regionally significant aggregate resources and reserving
routes for proposed road system expansions. The Province is currently
undertaking a review of the ADA regulations for the St. John’s Region and
this review process is the preferred forum for any amendments to this
designation.
Finally, a new governance structure was identified as a requirement for
effective implementation of the new Plan. There was a consensus opinion by
participants that updated development standards are required that are
consistently enforced. Also, meaningful public input to the decision-making
process was identified as another requirement.
Neighboorhood
Exhibit 3.1
Neighbourhood Workshops Key “Likes” Findings
1
2
3
4
5
Rural Setting & Heritage
X
X
X
X
Accessibility*
X
X
X
X
Low Density Development
X
Open Spaces
X
Preservation & Respect For Traditions
“Balanced” Development Potential**
X
X
7
X
8
9
X
X
X
X
X
X
X
X
X
X
X
Walking Trails
X
Shoreline, Rivers & Water Bodies
X
X
Lack of Commercial Projects
X
Safe For Children
X
Lack of Pollution
X
Unique Heritage Buildings***
6
X
X
*Backlands, Coast, Ponds & St. John’s
**Serviced & Unserviced
***Such as St. Philip’s Anglican Church
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Exhibit 3.2
Neighbourhood Workshops Key “Planning Related Challenges” Findings
Neighbourhood
1
2
3
4
5
6
7
8
9
Governance*
X
X
X
Active Transportation (Year-Round)
X
X
X
X
X
X
Harbour Management
X
Coastline For Recreation
X
X
X
Aging In Place
X
X
Sustainable Local Businesses
X
Provincial Controls & Agricultural Freeze
X
X
X
X
View Protection
X
Road Maintenance & Pedestrian/Vehicular Conflicts
X
X
Backland Development
X
Smart Growth**
X
X
X
X
X
X
X
X
Heritage Preservation
X
Surface & Groundwater Protection
X
X
*Development Standards, Enforcement & Public Input
**Integrating New and Old, Environmentally Sensitive, Protecting Slopes, Appropriate Density and Standards,
Open Space Retention, Water Bodies Protection, Flexible Development Regulations, Balancing Serviced (Small)
and Unserviced Lots, and Hunting Controls
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3.1.3
Other Consultations
A 1-800 number, newsletter survey and email were available for other
interests to provide input. In addition to the comments or opinions expressed
in the neighbourhood and sector meetings, two additional themes emerged
from these inputs. There is a strong desire to preserve different “rural
features” on a neighbourhood basis. For older areas, this desire refers to
preserving the rural legacy and allowing “working land uses” that do not
negatively impact on adjacent properties. For newer residential areas
(subdivision or estate-type), there is a preference to maintain a relatively low
density of development and to allow selective new development of a similar
density, scale and form that does not negatively impact on the environment
and rural lifestyle.
3.1.4
Vision
The community and individual consultations provided a reliable picture of
community concerns and expectations for the new Plan. They are
summarized in Exhibit 3.3 as outstanding community features and
challenges, and considerations for the new Plan. A vision (preferred future)
also emerges from the consultations that can be described as follows:
“In 2016, we see Portugal Cove - St. Philip’s as a community that
proactively meets the lifestyle needs of residents with a focus on maintaining
a rural setting and land-based lifestyle, appropriately scaled and located
new development, and community services and facilities that meet the needs
of a changing population and economic base. The result is a high quality of
life that focuses on managed growth, environmental stewardship and
heritage and cultural preservation.”
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Outstanding
Community Features
1. Rural Nature of the
Community
2. Physical Geography
and Natural
Environment
3. Local History and
Culture
Exhibit 3.3
Summary Of Consultation Findings
Outstanding Community
Considerations For
Challenges
The New Plan
Have specific controls in place to preserve outstanding
1. Encourage Appropriate
natural features and common community assets, i.e.
New Development
water views and vistas.
2. Maintain and Promote a
Healthy Lifestyle, Public
Recreation and Access to
Natural Areas
3. Provide Housing
Options for Various Age
and Income Groups
4. Provide Flexible
Employment and
Commercial Opportunities
for Residents
Acknowledge that Portugal Cove - St. Philip’s is in
transition with a changing population and varying
needs in different areas of the Town.
Consider sites for a community commercial centre and
a “clean” business park to grow the commercial tax
base and meet local needs.
Provide for the housing needs of different income and
age groups.
All growth and change should have an environmental
perspective.
5. Allow Rural Lifestyles
That Do Not Negatively
Impact On Adjacent
Properties
The Town’s “rural lifestyle” must be protected and
preserved.
Incorporate active lifestyle elements such as multi-use
trails.
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3.2
Town’s Financial Resources and Capabilities
The Town has a relatively strong financial position as a result of increasing
development and rising residential and commercial assessment values.
Total assets in 2006 exceeded $38 million with total principle debt of almost
$9.2 million that will be reduced by around $970,000 in 2006. Debt
repayment is based on seven-years for equipment and 15 years for capital
works. The dept repayment schedule is ±$6.2 million over the 2006 to 2010
period.
In 2006, the Town’s revenues and expenditures were $5.4 million. Of this
total, the distribution is presented in Exhibit 3.4.
The debt charge ratio is 30% which is relatively high while taxes of $3.5
million are based on $2.9 million residential property tax, $129,000 business
property tax, $304,000 water and sewer tax and $185,000 utility tax.
The new Plan must be integrated with the Town’s current operational
activities and future borrowing capacity. In this context, the new Plan should
seek to balance:
•
•
•
•
Changing market conditions,
The needs of local interests,
The Town's financial resources, and
The legal and regulatory requirements of the Province of Newfoundland
and Labrador.
The new Plan will impact upon the Town’s financial position. If the Town
does not have the resources to pay for existing or new services, or to invest
in new infrastructure or programs, then implementation problems may occur.
While the Town has benefited from increased revenues as a result of rapid
residential development and rising property values, the increase in revenues
is a result of a housing cycle (relatively low interest rates and strong
performance) that cannot be sustained over the medium to longer tem. This
reality means the Town should seek to diversify revenue away from
residential growth and seek a more balanced distribution of the residential:
commercial tax split that now stands at 96% residential and 4% commercial.
The revenue generated per square foot of commercial space is higher than
housing and businesses do not require the same level of municipal services
as residence. This diversification of the tax base will also ease the hardship
that increases in municipal taxes will have on those residents on fixed or low
income budgets.
A preferred tax split is 80% residential and 20% commercial or an increase
in the current commercial property taxes to ±$750,000 from $129,000.
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Exhibit 3.4
Town of Portugal Cove – St. Philip’s Financial Position: 2006
Revenues
Taxes
Grants in Lieu of Taxes and Tax Agreements
Sales of Goods and Services
Other Revenues From Own Sources
Government Transfers
Other Transfers
Total Revenues
$3,538,000
$0
$63,000
$205,700
$1,329,383
$298,910
$5,434,993
Total Expenditures
$696,200
$119,750
$562,800
$348,000
$219,600
$163,500
$3,325,143
$0
$5,434,993
Expenditures
General Government
Protective Services
Transportation Services
Environmental Health
Planning and Development
Recreation and Cultural Services
Fiscal Services
Other Services
3.3
Town Infrastructure and Services
This section contains a review of the Town’s municipal services and other
characteristics. The section starts with a review of the water, sanitary sewer,
storm sewer, transportation and solid waste systems. The discussions then
shift from municipal infrastructure to police and fire protection services,
communications and utilities, recreation, culture and heritage. There are no
significant concerns or deficiencies with Town infrastructure and services
that will have any major influence on the new Plan. The development of
Active Transportation (AT) travels modes and the implementation of more
infrastructure to control storm water, have been identified as possible priority
areas for future development.
As illustrated on Map 4, the Town is located on quite undulating geography
with a significant percentage of land having very steep slopes. Although the
Town’s current by-law permits development on slopes of 10% or less, slopes
from 0% to 8% are considered ideal for development, 8% to 12% are
constrained, 12% to 20% slopes are severely constrained and land with a
20%+ slope is considered undevelopable. With regards to the construction
and costs of future municipal infrastructure provision, steeper slopes should
be avoided if at all possible. The result is slightly less than 50% of the
Town’s total area is ideal for development (slopes of 0% to 8%).
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3.3.1
Water Supply and Distribution
Up until 2004, the Town was served by a reservoir at Blast Hole Pond which
limited piped services to lands below an elevation of 130 metres. Since that
time, through a Multi-Year Municipal Capital Works Program, the Town has
been connected to the St. John’s Regional Water Supply and has been able to
provide services to lands between 170 and 180 metres. According to the
Town’s 2005 Municipal Infrastructure Assessment and Master Plan, this
situation has been partially responsible for the present servicing situation
with piped water reaching approximately 700 residences out of a possible
2,400.
As illustrated on Map 3, the serviced area boundary is located mostly around
already developed lands as residential densities are higher in this area and
warranted the construction of piped services over the past two decades.
Approximately 2,010 acres (815 hectares) of lands in the Town are currently
serviceable. The estimated 1,700 residences currently not served by
municipal water utilize on-site systems (wells) of varying depths. It has been
recommended in the Infrastructure Assessment and master Plan that all onsite water systems be supplemented or replaced with deep drilled systems to
alleviate any potential issues with water quality.
Planning Considerations
Although it may be necessary to further upgrade or expand the Town’s water
supply system if development increases, as noted in the Infrastructure
Assessment and Master Plan, previous system designs provide ample
capacities in most areas for new developments to proceed in the near future
without requiring major system upgrades. It may be prudent for the Town to
require larger development applications to provide assessments of available
water capacity and any impacts that a proposal may have on the system.
3.3.2
Sanitary Sewer Collection
Most of the municipal sanitary sewer system was constructed in tandem with
the water system, and follows the same distribution pattern to approximately
the same number of properties. Lots without access to municipal sanitary
sewers require on-site septic treatment.
The Town currently has one wastewater treatment facility in St. Philip’s
which can accommodate a population of 1,000 (capacity) before upgrades
are required. It was commissioned in 2004 and employs a state of the art
Sequential Batch Reactor (SBR) that exceeds government treatment
guidelines. According to the 2005 Infrastructure Assessment and Master
Plan, an investment of $200,000 will increase facility capacity to
accommodate a total of 1,485 people. Presently, according to the 2005
Municipal Infrastructure Assessment and Master Plan, 700 households are
connected to the Town’s sewer system.
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The Portugal Cove portion of the community discharges raw sewage into
Conception Bay directly off of West Point. The Town recognizes that this
method is not in keeping with maintaining its environment and understands
that as new development occurs, the situation could potentially worsen. As
outlined in the Infrastructure Assessment Master Plan, the Town intends to
construct an SBR treatment facility in Portugal Cove that will service a
population of 3,000 people with future expansion allowances to account for
an additional 750 users. As of mid 2006, no final location or schedule for
construction of the facility has been determined.
Sanitary sewers in the Portugal Cove area have experienced problems with
infiltration from cross connections of residential drainage pumps. The
Infrastructure Assessment and Master Plan assessed this issue and
recommended continued municipal flow monitoring throughout the seasons
to quantify water flows under different conditions. These data can then be
used to determine an appropriate solution.
3.3.3
Storm Sewer System
The Town is currently serviced by a system of surface drainage, ditching and
culverts. Portions of the Town are prone to flooding and in a 1996 report by
the Newfoundland and Labrador Department of the Environment, it was
noted that six of 25 culverts were undersized and required upgrading, certain
developed areas were located within the determined cyclical floodplain of
rivers within the Town and that winter ice restricting allowable culvert flow
is a strong contributor to localized flooding.
The Canada – Newfoundland Flood Damage Reduction Program identified
Portugal Cove – St. Philip’s as having an ongoing problem with localized
flooding generally caused by undersized culverts and bridges as well as ice
jams and high water flows. As identified in the Municipal Infrastructure
Assessment and Master Plan, the two main areas of concern for flood
management are centered around Main River/Murray’s Pond River and
Broad Cove River.
The Municipal Infrastructure Assessment and Master Plan recommended that
storm water management plans (SWMP) be implemented for these areas and
the Town as a whole with expansions to Beachy Cove Brook and Goat Cove
Brook. Prior to completion of any SWMP, new developments in identified
problem areas should undertake measures to minimize negative impacts of
localized water flows to the satisfaction of the Town.
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Map 4 Services and Slope Analysis
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3.3.4
Police Services
Police services in Portugal Cove – St. Philip’s are handled by the Royal
Newfoundland Constabulary (RNC) based out of the provincial headquarters
in St. John’s. The force offers full service policing to the Town as well as a
Tactical Rescue Unit (also based in St. John’s) which is trained to respond to
situations such as hostage takings, barricaded persons, suicidal persons,
armed robberies and a variety of other tasks.
According to the most recent RNC statistics, calls for service in Portugal
Cove – St. Philip’s totaled 770 in 2004 which was a drop of 10 from the
same time period in 2003. Overall, calls for the Northeast Avalon area
remained relatively flat between 2000 and 2004 with an increase of 5.4%.
Violent crimes against persons decreased from 2,248 in 2003, to 2,214 in
2004 for the Northeast Avalon District. Traffic violations also decreased
during the same time period from 442 to 399 with excessive speed
infractions making up 70% of offences in 2004.
The RCMP, under contract with the provincial government, continues to
provide police services in all other areas of the province not included in the
RNC’s jurisdiction. The RNC and RCMP work together by means of
multiple year joint force operations for drug enforcement, Violent Crime
Linkage Analysis System (ViCLAS), Crime Stoppers, Criminal Intelligence
Services Newfoundland (CISN) and Integrated Proceeds of Crime Unit
(IPOC). Occasionally, they also initiate short-term joint force operations to
address specific criminal activity within any given community.
Neither the RCMP nor the RNC currently have plans to expand the forces
responsible for policing the Town. During consultations with residents and
Town officials, no issues with crime were identified that warrant the
inclusion of specific land use policies in the Plan. The Town may wish to
implement design specific crime prevention techniques such as CPTED
(Crime Prevention Through Environmental Design) for new construction but
considering the current lack of dense urban form, the effectiveness of
CPTED would be more limited within the current rural setting.
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3.3.5
Fire Protection Services
The Town of Portugal Cove – St. Philip’s has had a volunteer fire
department since 1996. Stations are currently equipped with two foam
equipped pumper trucks, a rescue unit vehicle and a four wheel drive support
vehicle spread between two locations. Fire halls for the department are
located in Portugal Cove on Portugal Cove Road and in St. Philip’s on
Thorburn Road.
The fire department functions with a chief, deputy chief and assistant deputy
chief while 30 active volunteers have completed a three-month training
course paid for by the Town.
According to the City of St. John’s 2000 Annual Report, the St. John’s
Regional Fire Department (SRFD) has a total of 249 volunteers and staff
serving a population of 142,000 and including: St. John’s, Mount Pearl,
Paradise and Petty Harbour/Maddox Cove. Considering the SRFD operates
with a ratio of 1 to 570 department staff to residents served and Portugal
Cove – St. Philip’s operates with a comparable approximate ratio of 1 to 195
the Town is currently well served in terms of population coverage. With
future growth, additional fire staff may be required on a full-time basis.
Concerns do exist with the fact that the Town’s Fire Department is strictly
volunteer at present and considering that many members may work outside
of the community, full responses to emergencies may be limited at certain
times. The Town does have an agreement with the St. John’s Regional Fire
Department in terms of dispatching 911 calls and no inter-municipal
servicing agreement is in place. This means that the St. John’s Regional Fire
Department may not respond to calls from Portugal Cove - St. Philip’s,
further limiting the effectiveness of fire protection services in the
community.
3.3.6
Power and Communications
Newfoundland Power provides electricity for all of the Town of Portugal
Cove – St. Philip’s. The company purchases about 90 per cent of its
electricity from the Crown corporation Newfoundland and Labrador Hydro,
and generates the balance from its own smaller hydro electric stations. Both
energy prices and petroleum products are regulated by the Newfoundland
and Labrador Board of Commissioners of Public Utilities. According to the
Newfoundland and Labrador Department of Mines and Energy here is no
natural gas available in the Province at present, although gas development
from the Grand Banks may occur in the near future.
According to Newfoundland Power, there are no issues with power
distribution or supply within the Town. However, underground power and
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communication services are a growing trend within new developments and a
potential solution to the real or perceived clutter of above ground
infrastructure. Considering the rocky terrain in many parts of Town, the
costs of implementing such a requirement under the new Plan could be
prohibitive.
High speed internet service is available throughout the Town from Aliant.
Rogers Communications currently offers high speed service in St. John’s but
only to the border of Portugal Cove – St. Philip’s. The company is presently
considering expansion into adjoining areas.
3.3.7
Solid Waste Collection and Disposal
In 2003, the Greater Avalon Regional Waste Management Committee was
established by the Government of Newfoundland and Labrador to
consolidate and advance a plan for solid waste management in the region.
The Avalon Peninsula Region currently uses 43 waste disposal sites. Part of
the Committee’s mandate is to consolidate all of the sites into a single site
system for managing household, commercial and institutional waste.
Currently, various potential waste processing facility locations are being
considered but none are located within Portugal Cove – St. Philip’s.
Therefore, there are no planning considerations for land uses under the new
Plan.
3.3.8
Municipal Parks and Recreation
The Town of Portugal Cove – St. Philip’s currently operates three outdoor
recreational facilities. Rainbow Gully Recreation Park is situated behind the
Town Hall on Thorburn Road and offers facilities for softball and
skateboarding as well as a playground. Voisey’s Brook Recreation Park is
located at the opposite end of the Town on Indian Meal Line and contains
softball, basketball, soccer facilities and a playground. Locations of both
facilities are illustrated on Map 5. Kiddie Lane is a small playground
situated in the Dogburry Hill Subdivision on Ursula Crescent primarily
aimed at active play for younger children. Town Staff regularly inspects all
outdoor recreational facilities and equipment.
The Town operates one indoor facility in the Portugal Cove – St. Philip’s
Community Centre near the Town Hall in Rainbow Gully Recreation Park.
The facility advertises itself as a space available for booking for social and
leisure needs such as dinners, dances, weddings, showers and parties. A
kitchen is available on-site and bar services can be provided.
As outlined in a 2005 recreation needs survey by Tract Consulting, for the
Town, all of the above facilities scored between 32% and 34% when survey
participants were asked if they had used them during the past year. The only
exception was Kiddie Lane at 9%. Although the Town currently has no
separate official trail system, 45% of respondents to the survey indicated
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they had used walking trails during the past year and a full 62% indicated
their use of informal open spaces which was the highest of any category.
Walking trails were also ranked as the most needed facility in the Town
followed by a swimming pool and multipurpose facility.
The recreational survey also indicates potentially significant pursuit of
activities outside of the community. With limited availability of certain
activities in Portugal Cove – St. Philip’s, 86% of respondents participated in
“special events” outside of the community while 72% did so for cultural
events and 66% for swimming. Considering the proximity of the community
to a broader base of services in St. John’s, local resident use of facilities
outside of the Town is expected. It is significant to note that 60% of
respondents indicated a willingness to pay increased taxes for the
development of further recreational amenities in the community.
The 2005 Infrastructure Assessment and Master Plan recommended the
development of a new community leisure centre that will meet the social
needs of a variety of users and age groups. Current facilities in the
community were assessed as being too limited in size and function to suit the
current needs and desires of the Town.
3.3.9
Education Facilities
The availability and quality of educational facilities is of vital concern even
though provision and regulation of education falls under provincial
jurisdiction. Portugal Cove – St. Philip’s is part of School District 4 (Eastern
School District) serving the eastern portion of the Province and has one
elementary school (Beachy Cove Elementary) within the community serving
kindergarten through grade six.
Discussions with officials of the Eastern School District revealed that
Beachy Cove Elementary is part of the feeder system for Leary’s Brook
Junior High School located in St. John’s which is again a feeder school for
Prince of Wales Collegiate. Prince of Wales Collegiate had an enrollment of
806 students for the 2004 - 2005 school year with numbers fairly evenly
distributed over grades 10 to 12. The school offers programming in both
French and English.
According to the Principal at Beachy Cove Elementary, enrollment has been
growing significantly in recent years due in part to Beachy Cove’s French
Immersion and Special Needs Programs being in high demand. The school
has had various students whose families relocated to the community
specifically for these programs.
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Beachy Cove Elementary opened in January 1993 and has a total current
(2006) enrollment of 550 students broken down by grade as follows:
Kindergarten
Grade 1
Grade 2
Grade 3
Grade 4
Grade 5
Grade 6
92 students (floating classes)
3 classes
4 classes
3 classes
3 classes
3 classes
3 classes.
The school building is reasonably new and was expanded since its original
construction to accommodate the increased local student population. The
student age profile as well as population (see Section 3.7) indicates a
growing community with younger families.
As provided in the Summary of Board Decisions, Eastern School Board
Public Meeting of June 7, 2006, the Board intends to secure funds for
construction of a permanent extension on Beachy Cove Elementary School.
As of late 2006, funds are still pending and no construction schedule has
been finalized. All construction will be on the existing school site.
3.3.10 Transportation
Transportation within the Town consists of private vehicles, walking and
cycling. An auto and passenger ferry service is also operated by the
Province between Portugal Cove and Bell Island across Conception Bay.
The service has two ships in use, and operates daily throughout the year with
return fares beginning at $6.25 per vehicle with passenger and $3.75 for
passengers alone. Major land and water travel routes are illustrated on Map
5.
Public Transit
At present, no public transportation system is in place to serve the Town.
The Metrobus transit service based in St. John’s does not currently provide
linkages to any destinations in Portugal Cove – St. Phillips although it has
recently undergone a routing review that is considering future expansion in
the area of the Town. There are no inter-municipal agreements for service
with Portugal Cove – St. Philip’s that use the Metrobus.
A user pay, para-transit service (Wheelway) is available for persons with
disabilities. According to the Independent Living Resource Centre in St.
John’s, Wheelway currently operates under cost sharing agreements with
municipalities that keep one-way trips to near $2.50 per person based on
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distance. Portugal Cove – St. Phillips does not currently have a cost sharing
agreement with the service. This can raises one-way trips to approximately
$17.50 per person.
Roadway System
The Town’s road network has evolved from treks and footpaths along the
shoreline and into St. John’s (and other destinations) through lands with
rapidly changing elevations, rock outcroppings and numerous other barriers
such as water bodies. Portugal Cove Road and Thorburn Road function as
the main routes in and out of the community and are connected near the
shoreline by Tuckers Hill Road and Beachy Cove Road.
According to the 2005 Infrastructure Assessment and Master Plan, there are
a total of 108 roads in the Town of varying sizes, classifications and
conditions. This total does not include private and provincial roads. The
main collector road system (Portugal Cove Road) is provincially owned and
maintained with an additional six collector routes that are owned by the
Town.
The Town is currently serviced by a loose network of main surface travel
routes supplemented by various less significant connections and numerous
minor and primarily local roadways providing access to subdivisions and
residential areas. Main travel routes include: Portugal Cove Road, Thorburn
Road, Indian Meal Line, Bauline Line, St. Thomas Line, Beachy Cove Road,
Tuckers Hill Road, Old Broad Cove Road and Witch Hazel Road.
The Infrastructure Assessment Master Plan identified various roads in need
of repair and recommended that the Town implement an annual road
improvement program but did not identify any particular traffic flow or
volume issues within the overall system. As the Town has a limited
commercial base as well, no parking issues have been identified. The City of
St. John’s provided traffic counts of 9,052 average daily traffic (ADT) for
Portugal Cove Road north of Major’s Path and 11,121 ADT for Thorburn
Road west of Mt. Scio. Although these counts were completed in 2002 and
2001 respectively, no traffic volume capacity issues were identified for either
route and these volumes are below their respective roadway capacities.
No vehicular transportation issues were identified in the 2005 Infrastructure
Assessment Master Plan based upon volumes. However, repair and
maintenance are an issue that should be considered in the new Plan.
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Pedestrian and Non-Motorized Transportation
Portugal Cove – St. Philip’s is one of the geographically largest
municipalities in the province at approximately 60 square kilometers. The
Town is also largely residential with few commercial or employment
destinations when compared to neighbouring municipalities. These factors,
as well as historic development patterns and the physical setting, have
contributed to the lack of a substantially developed pedestrian sidewalk or
official trail system within the Town.
There is a consensus opinion by health care professionals, urban planners
and other professionals that a more active lifestyle for a larger segment of the
population should be a priority in municipal plans. Creation of a nonmotorized Active Transportation network within Portugal Cove – St. Philip’s
could be a means to achieving this goal. Active Transportation (AT), by
definition, is any form of self-propelled (non-motorized) transportation that
relies on the use of human energy such as walking, cycling, inline skating
and jogging.
The development of an AT multi-use trail network under the new Plan would
provide residents and tourists with acceptable alternatives to the private
automobile, act as a possible channel for improving the health of residents
and could have economic spin-off effects through increased tourism and
potential visitors to the historic and scenic “Killick Coast”.
3.4
Heritage and Culture
Portugal Cove – St. Philip’s is home to two heritage properties provincially
registered with the Heritage Foundation of Newfoundland and Labrador.
The first is in the Society of United Fishermen Lodge located at 1494 – 1496
Thorburn Road. The Lodge is a wooden one storey building clad in narrow
wood clapboard. Constructed circa 1930, it was built by local fishermen and
includes vertical plant hide posts that support the building and a decorative
façade roofline. It is a good example of early twentieth century vernacular
style for the area.
The second property is known simply as “The White House”. As described
by the provincial registry, it is a “noteworthy example of construction
techniques employed by Irish settlers in the province. Of particular note is
the large open fireplace or inglenook contained within the structure, a very
rare example of Irish vernacular construction in Newfoundland.” The
fireplace consists of three stone walls and a flagstone floor. Two benches,
seating up to 10 people, are arranged on the projecting walls and are
indicative of a social gathering feature common to the local area before the
introduction of wood and oil stoves.
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Located at 131 Beachy Cove Road, the White House was constructed
sometime in the early nineteenth century and is one of the oldest intact
structures in the region. The house was designated a Registered Heritage
Structure by the Heritage Foundation of Newfoundland and Labrador in
1992. The Town is also home to the Portugal Cove War Memorial that was
erected in memory of those who lost their lives in World War I and World
War II.
It is worth noting that although the Town does not currently have a gallery
space or area for exhibiting visual art, there are artists operating within the
Town such as Sarah Hansen Design and Calligraphy. Bed and Breakfasts
such as Beachy Cove B&B and Dogberry Hill also add to the distinctive look
and feel of the overall community as do businesses offering unique services
and products such as Real Soap!, specializing in handmade soap products,
Tickle View Herbals, an organic herb farm producing herbal teas and The
Spice Barn which offers a variety of herbs and spices to local residents.
According to the Government of Newfoundland and Labrador, there are
three archeological sites located within the community. They are:
Site CjAf-06 – Shipwreck in Portugal Cove Harbour. The Provincial
Archeology Office has no information on the date or location of the wreck
though and due to it being located outside of municipal boundaries, the site
has no immediate impact on the Municipal Plan.
Site CjAf-08 – Wester Point Burial Ground. This site is a late 18th to early
19th century cemetery. The entire site should be protected
and any adjacent impacts mitigated under the new plan.
Site CjAf-09 – This site holds a possible 19th or early 20th century farmstead
near Nearys Pond. As the archeological value of the site remains
undetermined, the plan should address the area carefully and with a
preservationist approach until such time as full historic status may be
determined.
The locations of provincial archeological sites and registered historic
structures are provided on Map 5. The Town also contains other historic
cemeteries not deemed to be of provincial significance.
The new Plan must protect the Town’s heritage and cultural resources.
These special resources reflect a heritage and legacy that must be preserved
for future generations.
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Map 5 – Special Features
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3.5
Recreation
Located in close proximity to the largest urban area in the province, residents
of Portugal Cove – St. Philip’s enjoy both the benefits of the many
recreational opportunities within their own community as well as in the
surrounding area. A variety of social, sporting, educational and leisure
organizations are established in the community that serve a range of ages and
interests.
The Rainbow 50+ Club organizes activities and monthly socials for older
residents while the Woman’s Institute focuses on providing for the needs of
women in the community for example. Youth and children can become
involved with a variety of age-level based branches of the Boy Scouts and
Girl Guides. Local sporting and fitness clubs include: Yoga in Your
Community, Slimmer Bodies, Aerobics by “Cath”, the Mixed Dart League,
Scarlet Dragon Society Kung Fu and the Mixed Slow-Pitch Softball League.
The Town also has branches of the Lions Club and the Royal Canadian
Legion.
In addition to organized activities, informal walking and hiking trails exist
that encompass more traditional “trail” type routes as well as older or unused
roadways. The Municipal Directory for Parks, Recreation, Leisure and
Business Services lists Rainbow Gully (Municipal Park) as having a network
of old trails and roads as well as Greyman’s Beard Trail and Beachy Cove
Trail as being hiking trails although not existing on municipal lands. Both
Greyman’s and Beachy Cove Trails offer scenic views of the shoreline from
different perspectives.
Meeting the recreation needs of residents is a key building block to a healthy
community. The new Plan should facilitate an active lifestyle by residents
by a wide base of service providers.
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3.6
Physical Setting and Environmental Assets
Environmentally Sensitive Areas
The Town contains no provincially or federally designated ecological
preserves, protected areas or environmentally sensitive lands or waters.
Maritime Barrens Ecoregion
Portugal Cove – St. Philip’s is part of the Maritime Barrens Ecoregion
extending westward across the southern half of the uplands of Newfoundland
to the Long Range Mountains. According to Memorial University, “balsam
fir is the dominant tree species but fires have led to the replacement of fir by
sparse stands of black spruce, balsam fir, tamarack and shrubs, along with
mosses and lichen. Moss grows on blanket and flat bogs.” Local wildlife
includes such species as black bear, red fox, lynx, moose and caribou.
The elevation of this ecoregion rises to approximately 250 metres above sea
level, and is composed of a mixture of sedimentary rocks and granites. The
uplands are rugged and rocky while lower areas generally have a rolling
topography interspersed with lakes, bogs and open rock outcroppings.
Climate
Environment Canada describes Newfoundland as having few physical
barriers to protect it from weather systems, particularly in sea-based weather
events. Climatically, Newfoundland and Labrador is the most maritime of
the Atlantic Provinces, and this is evident in all seasons, but especially in
spring and summer, which are quite cool by Canadian standards but also
often includes less extreme temperature ranges in winter months than more
inland areas of the country. Winters can vary considerably, due to the
influences of both maritime and arctic systems at times in quick succession.
The Federal Government operates a weather station on the Avalon Peninsula
near to the City of St. John’s that is one of five Doppler weather radar
locations in Atlantic Canada. According to Environment Canada, the
immediate metropolitan area of the City of St. John’s, which includes
Portugal Cove – St. Philip’s, is the foggiest in the country (124 days, next to
Halifax's 122), snowiest (359 cm, next to Quebec City's 343), wettest (1,514
mm, next to Halifax's 1,491), windiest (24.3 km/hour average speed, next to
Regina's 20.7), and cloudiest (1,497 hours of sunshine, next to
Charlottetown's 1,818 hours).
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Although extreme weather events in terms of storms and temperature ranges
do occur in the Portugal Cove – St. Philip’s area, they generally have little
impact on land use planning considerations. Extreme weather should be
considered though in any future decisions for developing structures that may
be impacted by high winds and snow pack.
3.7
Population
Population change is a good indicator of economic well-being. Typically,
population will increase in areas with buoyant economic conditions, and fall
where employment opportunities are limited. Census data for Portugal Cove
- St. Philip’s are presented in Exhibit 3.5. The Town experienced a positive
population growth rate of 1.6% between 1996 and 2001 which is a full 8.6%
higher than the declining provincial rate. The City of St. John’s experienced
a population decline of 2.7% over the same time period, indicating a
somewhat unique regional and localized growth situation in Portugal Cove –
St. Philip’s.
Exhibit 3.5
Population Change –1996 to 2001
Portugal
Percentage
Cove - St.
Change
Philip’s
1996
5,773
2001
5,866
1.6
Source: Statistics Canada.
Year
City of St.
John’s
101,936
99,182
Percentage
Change
Newfoundland
and Labrador
Percentage
Change
-2.7
551,792
512,930
-7.0
Population projections were calculated using Statistics Canada latest
available census data (2001). As 2006 is a census year with results not yet
available, data may require updating. Growth in the population of the Town
will in part be dependant on the new Plan selected by Town Council. If
current trends continue, population growth will be robust
The Infrastructure Assessment and Master Plan outlined population growth
scenarios based on growth in dwelling units and average household size until
2011. Based on the average number of building permits issued per year
between 1999 and 2004 (70) as well an assumed household size stabilizing at
2.6 persons per dwelling, this plan projected population growth to total 6,583
by 2006. Expanding upon the methodology used, projected population will
increase by 3,993 or 68 percent between 2001 and 2024.
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Exhibit 3.6
Population Projections
Status Quo Growth Scenario
Indicator
2001 – baseline
5,866
2006
6,583
2012
7,675
2018
8,767
2024
9,859
Source: SGE Acres estimates based upon assumptions listed.
The 2001 age profile of Portugal Cove - St. Philip’s and Newfoundland and
Labrador is provided in Exhibit 3.7. Seventy-two percent of the population
in Portugal Cove - St. Philip’s is between 15 and 64 years, which provides an
indication of the percentage of the population that is of an age that
participates in the workforce. This percentage is slightly higher than values
for the City of St. John’s as well as the Province as a whole. The Town’s
youngest age cohort (0 to 14) contains 20% of the total population which is
generally indicative of a higher proportion of younger families with children.
The Province and City of St. John’s both have lower percentages of this
cohort. The oldest age cohort (65+) for Portugal Cove – St. Philips stands at
8%, which is significantly below the provincial and St. John’s percentages of
13%. The median age in Portugal Cove – St. Philip’s is 37.3 years. This
value is lower than the Province (38.4 years) as well as the national median
of 37.6 years but slightly higher than neighbouring St. John’s (37.0 years).
Exhibit 3.7
2001 Population Age Breakdown
Age
Portugal Cove - St. Philip’s
Population
Percentage
0-14
1,135
20%
Years
15-64
4,240
72%
Years
65+
495
8%
Years
Median
37.3
Age
City of St. John’s
Newfoundland and
Labrador
Population Percentage
Population
Percentage
16,030
16%
88,770
17%
70,560
71%
361,105
70%
12,595
13%
63,055
13%
37.0
38.4
Data from the 2001 Census of Canada was reviewed to determine where
residents of Portugal Cove - St. Philip’s lived five years earlier. Exhibit 3.8
provides a breakdown of mobility between 1996 and 2001. For the purpose
of this analysis, intra-provincial migrants are defined as persons who have
moved into Portugal Cove - St. Philip’s since 1996 from another location
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within Newfoundland and Labrador. Inter-provincial migrants are persons
who have moved from another Province, and external migrants are those
persons who have moved from outside Canada.
Within the Town of Portugal Cove - St. Philip’s, the proportion of residents
who did not move was higher than for Newfoundland and Labrador and
significantly higher than national rates. The proportion of inter-provincial
migrants in Portugal Cove - St. Philip’s was lower than for Newfoundland
and Labrador as well as for Canada with rates just over one-sixth the national
average. The movement rate from areas outside of the Province was higher
but similar to the provincial rate while still remaining less than one-third of
the overall Canadian average. These comparisons reveal a strong preference
for people to move into the Town and then remain.
Exhibit 3.8
Mobility – 1996 to 2001
Portugal Cove - Newfoundland
St. Philip’s
and Labrador
Did Not Move
Intra-Provincial
Migrants
Inter-Provincial or
External Migrants
Portugal Cove - St. Philip’s Ratio
Canada
92 %
89.7 %
58.1 %
Newfoundland
and Labrador
1.54
6%
8.4 %
35.2 %
0.23
0.17
2%
1.9 %
6.7 %
0.28
0.29
Canada
1.58
The level of educational attainment is an indicator of the labour force's
ability to respond to changing market conditions. As presented in Exhibit
3.9, educational attainment levels were compared for Portugal Cove - St.
Philip’s, St. John’s, Newfoundland and Labrador and Canada. The
proportion of persons having only completed high school in Portugal Cove St. Philip’s is below the national average but almost exactly the same as
provincial levels. The same can be said of municipal and provincial rates of
persons having completed a trade certificate or diploma although both rates
are significantly above national levels with St. John’s falling in between both
extremes.
Portugal Cove - St. Philip’s has higher proportions of residents holding
college certificates and university degrees than both provincial and national
rates and outstrips the St. John’s percentage in numbers holding a college
education. Almost 20% of the residents hold a college diploma or university
degree for example, compared to less than 15% for both educational
attainment levels within the Province as a whole. St. John’s significantly
surpasses Portugal Cove – St. Philip’s in number of residents holding
university degrees because it is an administrative centre and the provincial
capital.
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Exhibit 3.9
Educational Attainment Comparison
30
25
Portugal Cove – St
20
St. John’s
15
Newfoundland and
Labrador
10
5
Canada
0
High School
Certificate
Trades
Certificate or
Diploma
College
Certificate or
Diploma
University
Degree
The Town's population profile has an overall younger population than
Newfoundland and Labrador which results in different labour force
indicators. The Town's labour force participation rate is 67.4% in comparison
to lower values in Newfoundland and Labrador and in the City of St. John’s.
This translates into an unemployment rate far below the provincial average
and still significantly below the rate for the City of St. John’s. The
employment rate is 54.6% in St. John’s, 45.1% in Newfoundland and
Labrador and 61.7% in Portugal Cove – St. Philip’s.
Exhibit 3.10
Labour Force Indicators
Portugal Cove - St.
Philip’s
City of St.
John’s
Newfoundland and
Labrador
Participation Rate
67.4
61.8
57.6
Employment Rate
61.7
54.6
45.1
Unemployment Rate
8.3
11.7
21.8
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Exhibit 3.11 provides a breakdown of the labour force by occupation
grouping for Portugal Cove - St. Philip’s, Newfoundland and Labrador and
Canada. Based on these data, Portugal Cove - St. Philip’s exceeds the
Newfoundland and Labrador average in:
•
•
•
•
•
Management Occupations,
Business, Finance and Administrative Occupations,
Natural and Applied Sciences and Related Occupations,
Health Occupations,
Occupations in Social Science, Education, Government Service and
Religion, and
• Occupations in Art, Culture, Recreation and Sport.
All other categories show lower comparable participation rates.
Compared to Canadian data, Portugal Cove - St. Philip’s shows greater levels
of participation in:
• Occupations in Social Science, Education, Government Service and
Religion,
• Occupations in Art, Culture, Recreation and Sport,
• Sales and Service Occupations,
• Business, Finance and Administrative Occupations,
• Natural and Applied Sciences and Related Occupations, and
• Health Occupations.
Sales and service occupation rates were slightly higher in Portugal Cove – St.
Philip’s and slightly lower in management occupations but only by 0.2% and
0.4% respectively.
The lowest area of participation was in occupations unique to processing,
manufacturing and utilities which ranked at less than or near to a quarter of
both provincial and national averages.
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Exhibit 3.11
Labour Force Comparison by Occupation (Percentage)
Portugal Cove - St. Philip’s
Ratio
Occupation Group
Portugal Cove Newfoundland
- St. Philip’s and Labrador
Management
occupations
Business, finance and
administrative
occupations
Natural and applied
sciences and related
occupations
Health occupations
Occupations in social
science, education,
government service
and religion
Occupations in art,
culture, recreation and
sport
Sales and service
occupations
Trades, transport and
equipment operators
and related
occupations
Occupations unique to
primary industry
Occupations unique to
processing,
manufacturing and
utilities
Canada
Newfoundland
and Labrador
Canada
10.0
8.1
10.4
1.23
0.96
18.7
14.0
17.8
1.33
1.05
8.1
5.1
6.4
1.58
1.26
7.0
5.8
5.2
1.20
1.34
8.7
7.7
7.7
1.12
1.12
3.6
1.9
2.8
1.89
1.28
23.8
25.5
23.6
0.93
1.01
13.8
17.2
14.7
0.80
0.93
3.6
7.8
4.3
0.46
0.84
1.7
6.5
7.0
0.26
0.24
Portugal Cove - St. Philip’s occupies a fairly unique position within the
Province and to a lesser extent the localized Avalon Peninsula economy. It
has a relatively young and educated population base with median family and
household incomes far surpassing provincial levels. The Town has an
unemployment rate 3.4% lower than the City of St. John’s and a full 13.5%
lower than the provincial average and also enjoys a positive population
growth rate of 1.6% that is again far above the negative provincial level.
When people move to the community, they tend to stay. The results will be
different housing needs over the next decade as older residents transition
from single family housing to other forms of accommodation and the
population ages. To retain older residents, the new Plan must contain
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policies, land use designations and initiatives that meet the needs of young
families to seniors in assisted living accommodation.
Education attainment levels have resulted in employment dominated by
business, finance, social science, education, government and health, with a
distinct absence of jobs in primary industry and processing and
manufacturing occupations. While residents of Portugal Cove - St. Philip’s
enjoy higher than provincial average earnings as well as incomes, they also
rely quite heavily on employment income and have a lower reliance on
“other income” sources such as dividends, investment, pensions and the like
than both provincial and national averages. This distribution reflects the age
profile as pensions and investment income are typically used by older
residents. This profile will change in the future as more older residents
transition out of the workforce. When this occurs, there will be increased
demands for stable residential taxes. This condition can be achieved by
increasing the commercial taz base.
3.8
Economic Base
Small commercial areas currently exist sporadically along portions of
Portugal Cove Road and Thorburn Road as well as in historic areas of the
community near the coastline. A mix of commercial uses is also present
within residential areas of Bauline Line and Indian Meal Line but no true
commercial core or “downtown” area exists in the community. The
expansive nature of individual commercial uses mixed with residential
housing indicates that the consolidation of future commercial growth areas
may be required to facilitate the development of a new community core.
With an estimated population of 6,583 in 2006, Portugal Cove - St. Philip’s
has average per capita annual expenditures of $20,799 as opposed to an
average of $24,127 in the St. John’s Census Metropolitan Area (CMA).
Retail and service expenditure profiles are often useful in determining the
demand for certain types and square footage of commercial development
within a municipality. In the case of Portugal Cove - St. Philip’s, there is
estimated total annual household expenditures of almost $137 million with a
significant amount spent on retail items such as clothing ($6.9 million) that is
not readily available within the local community.
There is significant retail spending “leakage” occurring between Portugal
Cove - St. Philip’s and nearby communities of St. John’s and Mount Pearl.
These other urban areas offer a much more developed retail environment, are
located conveniently along highway routes and have more direct access to
traffic arriving and departing the Avalon Peninsula. Although direct
competition with the retail market in St. John’s or Mount Pearl should be
approached cautiously, land within the Town should be designated under the
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new Plan to accommodate retail sales “leakage recapture” and growing local
commercial demand.
The Town’s economic base is limited with the majority of the community
made up of residential development. There is an acknowledgement by
participants in the consultation program that the attraction of more retail and
service businesses suitable to the community (including a possible new
“clean” business park and home-based enterprises) should be permitted in
the new Plan. Tourism and the natural environment of the community are
also key economic drivers that should be acknowledged in the new Plan.
The Town’s population and current place within the greater St. John’s
commercial market indicates the potential for the development of new
commercial clusters centered around existing services and amenities to both
meet local needs and increase the commercial tax base. Home-based
businesses within the historic areas of the Town in particular also offer an
opportunity to grow the commercial tax base while preserving the current
historic architectural form and rural lifestyle.
3.9
Housing and Land Development
Communities like Portugal Cove – St. Philip’s must have an available supply
of building lots within their boundaries in order to successfully absorb
market demand for new housing. In general, this refers to the number of
subdivisions which have previously completed the process of gaining
municipal approvals. Once approved, a subdivision may move forward with
construction by the owner or it may be sold to another developer or
individual but remains a viable development option so long as the municipal
approval remains in effect. In this way, ascertaining a required market
inventory is dependant only on municipal approval and not on final housing
construction or the issuance of occupancy permits for any new dwellings.
Canada Mortgage and Housing Corporation (CMHC) uses an unofficial rule
of thumb that five years of approved building lots will allow normal market
forces to function within a market. According to Statistics Canada, there
were 485 new single family dwelling units constructed in Portugal Cove – St.
Philip’s from 1996 to 2001. Town records also then indicate that from 2002
to 2005, a total of 337 new single family dwellings were constructed for a
total of 822 over the nine year period in question.
Regional Demand
Housing for Portugal Cove – St. Philip’s is included in the St. John’s Census
Metropolitan Area (CMA) by Statistics Canada and CMHC to forecast
demands in the housing market for the region. Exhibit 3.12 compares the
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percentage of single family housing starts for the CMA since 2001 and the
percentage of this regional demand that has been absorbed by Portugal Cove
– St. Philip’s during the same time period. As can be seen, the percentage
ranges between 6.0% and 8.0% and shows a strong correlation with demand
experienced by the overall CMA. Totals for 2006 and 2007 are forecasted
based on an average historic market share of 7.0%. Over a five year period,
this translates into a demand for approximately +/- 300 new lots when taking
into consideration forecasts for a declining housing market.
Exhibit 3.12
Housing Starts in Portugal Cove – St. Philip’s and the St. John’s CMA
2001
2002
2003
2004
2005
2006(f)
St. John’s CMA
875
1,093
1,213
1, 275
1,096
825
Portugal Cove – St.
Philip’s – Number &
53 (6%) 73 (7%) 89 (7%) 103 (8%) 72 (7%)
57
Share (%)
2007(f)
800
56
(f) Forecast by CMHC.
Current Municipal Lot Inventory
Subdivision development activity in Portugal Cove – St. Philip’s has been
experiencing rapid growth in recent years with a total of 20 subdivisions now
approved. This number includes municipally serviced (76%), on-site
serviced (17%) and partially serviced (7%) developments that have received
permits or conditional approval (two years and then re-application is
required). Total lot numbers within each approved subdivision range
substantially with two developments totaling 100 lots, one totaling 75 and
others ranging from 55 down to six building lots. As of August 2006,
subdivisions with development permits encompassed 312 building lots with
conditionally approved subdivisions making up 288 building lots for a total
of 600 available lots in various stages of development. Under expected
future market conditions, projects with permits or conditional approval
would meet expected future demand for 7.5 to 10 years.
Planning Implications
As housing units and population increases so too does the pressure on
municipal services, budgeting and projected future capital costs. At times, it
may be prudent of a municipality to choose to slow the pace of development
in order to focus on the quality of each application and the effective
integration of new servicing and housing patterns with the overall
community.
The Town currently has a diverse mix of housing options in place as well as
a significant number of approved new lots that will potentially become
occupied in the next five to 10 years. The municipality is also
geographically large (approximately 5,970 hectares or 14,750 acres) but
when considering the remaining developable land, only 1,940 hectares
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(4,795 acres) are available and only 815 hectares (2,010 acres) are currently
serviceable. The pace of demand, the current lot inventory and the limited
land available for development in the future are all factors that must be
considered in the new Plan.
3.10 Summary
The consultation program and other assessments have identified topics for
consideration under the new Plan. The result is Town Council has flexibility
in selecting the preferred option that should protect or enhance the special
qualities of the Town while meeting future needs.
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4 Conclusions and Recommendations
There is a consensus opinion from the consultation program and research
conducted by SGE Acres that refinements and updates are required to the
current Plan to preserve the community’s key assets and meet changing
needs. SGE Acres has concluded that the new Plan must seek to:
•
•
•
•
•
Maintain the community’s rural quality of life.
Link the environment with the economy.
Place a priority on environmental stewardship and historic preservation.
Manage growth that is appropriate to the community’s scale and lifestyle.
Locally provide for more employment opportunities and resident services;
including rural/agricultural businesses.
• Acknowledge demographic change and provide for changing housing
needs of a growing and aging population.
• Provide more opportunities for a healthy lifestyle (including Active
Transportation).
• Maintain quality and integrity (building design and uses) in tourism and
commercial development.
4.1
Recommended Guiding Principles For The New Plan
The Background Report’s findings contain insights that are compiled into a
set of recommended guiding principles for consideration by Town Council
under the new Plan. The guiding principles are presented below.
1. Environmental stewardship, heritage preservation and effective
integration of new development with the Town’s rural character and
lifestyles should be a foundation of the new Plan.
2. Policies concerning environmental management and enhancement should
be included in the new Plan. These policies should be based on the
principles of good stewardship and acknowledge that land use planning
and environmental regulations fall under different statutes. Planning is
mostly a municipal concern while environmental matters (including
watershed protection and agricultural land) are senior government
responsibilities.
3. Policies in the new Plan should encourage quality new development that
is appropriately integrated into streetscapes, neighbourhoods and the
larger community. In historic areas of the Town, as of right
development should be approached with caution if it negatively impacts
on traditional rural activities and lifestyles.
4. Policies in the new Plan should permit the Town to operate in a fiscally
sound and responsible manner while blending the changing needs of
residents, businesses and visitors.
SGE Acres Limited
4-1
5. Town Council should seek to utilize existing infrastructure capacity in
serviceable areas prior to investing in new infrastructure.
6. The new Plan should seek to grow the Town’s commercial tax base in
order to provide additional local employment opportunities and revenues
to support community, environmental enhancement and quality of life
investments. Industrial-type development should only be pursued in
business park settings while commercial clusters should encourage
locally owned businesses.
7. The new Plan should align the supply of residential land to the changing
housing needs of the population. A priority should be placed on meeting
housing needs from young adults to seniors so that residents can easily
transition to alternative forms of housing at different stages in the life
cycle.
8. The new Plan should seek to consolidate retail and other commercial
activity in designated commercial areas of the Town. Uncontrolled
ribbon commercial development will be discouraged while home-based
businesses should be permitted that preserve the integrity of residential
neighbourhoods and streetscapes.
9. The Town’s shoreline and unique geography are important resources.
An integrated strategy should be considered to protect and enhance these
assets (views, scale and type of development, public access).
10. Recreation and leisure programs and services are required for a healthy
lifestyle. These needs of residents and visitors change over time. Town
Council should regularly monitor Active Transportation, recreation,
cultural interpretation and leisure activities to ensure that resident and
visitor needs are being met by the facilities and services available.
4.2
Recommended New Plan Framework Options
SGE Acres has concluded that Town Council has three options for the new
Plan. Each of these options will have a different emphasis on:
•
•
•
•
•
•
Priorities
Land Use Classifications
Permitted Uses in Zones
Strategic Leadership and Governance
Town Involvement in Land Development
Environmental, Recreation, Open Space and Heritage Resource
Management
• Economic Development
• Institutional Development
• Capital Budget(s).
SGE Acres Limited
4-2
With all of the options, changes will be required in policies and land use
controls in the 2002 Plan to bring them up-to-date with current requirements
and expected future needs. Investments by the Town in services and
infrastructure will also vary by option.
Exhibit 4.1 contains the key features of each option.
4.2.1
Option 1: Managed Growth Strategy
Under this option, the Town will make selective adjustments to the existing
Plan while retaining the majority of the current Plan’s land use classifications
and definitions. Demographic changes will frame all policy decisions with
any resulting revised policies and land use controls balancing fiscal needs
with Town goals (such as environmental and historic preservation
initiatives).
This approach is generally the norm for many smaller communities in
Atlantic Canada. With as of right development under the Development
Regulations, the Town will focus on compliance with minimum standards
and seek to resolve land use and development conflicts on a case by case
basis.
4.2.2
Option 2: Market Leader Strategy
This option is defined by the Town taking a more proactive approach to
planning in a variety of areas related to a changing population base,
sustainable environmental policies and a broader range of commercial and
business options for residents that support a rural lifestyle. Specific topics
that can be addressed under this strategy include: the range of housing
options available in the community, providing more Active Transportation
(non-motorized) infrastructure, designating different heritage zones for
traditional areas around Portugal Cove and Broad Cove, establishing design
standards for new infill development projects and preserving view planes to
Conception Bay in specific areas.
The commercial part of this strategy will allow for the establishment of retail
and service clusters centered around the Town Offices as well as select
expansion of existing commercial nodes in Portugal Cove, the designation of
a new light (clean) industrial park site along Indian Meal Line and permitting
a broader range of home-based businesses in residential areas to take
advantage of advances in technology and employment trends. The shift
toward a more permissible home-based business environment could also
stimulate the on-site sale of agricultural produce from local farms and permit
a broader definition of sustainable uses of agricultural lands.
SGE Acres Limited
4-3
4.2.3
Option 3: Market Leader with Controlled Growth Strategy
This option contains all of the features of Option 2 but places greater
restrictions on the scale and type of new subdivisions while seeking to
develop the inventory of lots that are approved but not developed.
Portugal Cove – St. Philip’s has recently been experiencing rapid housing
growth with an accompanying number of approved subdivisions that have
yet to be fully constructed. Slowing growth to permit more effective
integration with the community’s quality of life and the Town’s financial
resources while maintaining a sufficient supply of approved building lots is
part of this strategy.
Implementation of a development moratorium or “freeze” is not an allowable
planning tool. Instead of this approach, Option 3 would seek to control new
subdivision growth by making certain types of subdivision development a
discretionary use under the Municipal Development Regulations. This
would effectively provide Town Council with the option to either allow or
disallow new developments based on the needs of the community.
4.3
Next Steps
Town Council must decide on the preferred option for the new Plan. This
decision will then be used to prepare the Municipal Plan and Development
Regulations.
SGE Acres Limited
4-4
Exhibit 4.1
New Plan Options
Option 3: Market
Leader with
Controlled Growth
Topic or
Feature
Option 1: Managed
Growth
Priority
Topics
Focus on updating land use
activities, historic preservation,
and environmental
management.
Demographic changes will
frame all policies.
Revised policies and land use
controls will balance the needs
of the existing tax base and
rate, controlling land use and
environmental resources, and
meeting the needs of existing
and new residents and business.
Plan for changing housing needs
(aging population, young families)
and housing affordability.
Preserve heritage areas and natural
environmental features.
Allow a broader range of homebased service businesses.
Designate more lands for highwaytype commercial and light industrial
(clean) development.
Incorporate more multi-use trials
into the community.
Specify natural view planes and
view corridors for protection.
Same as Option 2 plus:
Retain 2000 Plan classifications
and definitions (with minor
adjustments).
Retain 2000 Plan classifications
with an emphasis on the effective
integration of new buildings and
infill development.
Add new classifications for different
forms of housing (including
affordable housing), business parks
(clean industries) and clean energy.
Institute a shift to more flexible
zoning with a focus on the effective
integration of rural lifestyle land
uses and new building designs into
streetscapes and neighbourhoods.
Same as Option 2.
Land Use
Classifications
Option 2: Market Leader
Regulate new subdivision
approvals with an
emphasis on meeting
market demand while
encouraging already
approved lots to be more
fully developed.
Permitted Uses
In Zones
Increase permitted commercial
uses.
Update definitions in the
Development Regulations as
per Provincial standards.
Review lot size and setback
requirements.
Shift from an emphasis on
excluding particular use categories
in all areas to an emphasis on
controlling and/or eliminating
negative effects of particular uses
on adjoining properties, the
environment and important natural
and historic features.
Same as Option 2.
Strategic
Leadership &
Governance
Same as 2000 Plan.
Retain consultants to advise on land
use, heritage, tourism and urban
design matters.
Conduct annual performance
reviews.
Establish a formal process for
monitoring volunteer engagement
on strategic issues in all parts of the
community.
Same as Option 2.
SGE Acres Limited
4-5
Town
Involvement In
Land
Development
No change.
Pursue partnerships with external
groups to encourage appropriate
site planning and urban design
integration in older (heritage) areas.
Environmental,
Recreation,
Open Space &
Heritage
Resources
Management
No change.
Economic
Development
Focus is commercial and
light-industrial development
that is compatible with the
natural and heritage setting.
Institutional
Development
Support institutions that
enhance the quality of life
(including research and
educational facilities, health
facilities, tourism and cultural
venues and recreation
facilities.)
No change.
Include additional policies to
protect lakes, waterways and
wilderness areas.
Include policies that protect
important community view planes
and corridors.
Include policies that permit forms
of clean renewable energy and
more non-motorized transportation
(Active Transportation).
Include policies for stormwater
management in new development
areas.
Include additional heritage
preservation policies.
Address issues with designated
agricultural areas (ADA) within the
context of the Provincial review.
Target more businesses and
services to meet the needs of
permanent residents (such as
dentist, health services and
neighbourhood retail).
Allow additional commercial uses
of agricultural lands that are
directly related to current
agricultural uses (farm markets,
etc.).
Include provisions for permitting
technology based and/or other non
offensive commercial uses in
residential areas with special
provisions for more rural-based
lifestyle uses in selective older
areas (such as Portugal Cove).
Same as Option 1.
Capital Budget
Include policy that states the new
Plan’s implementation will
acknowledge the Town’s financial
position, the need to increase the
commercial tax base and the need
to control future increases in
residential taxes.
Make all new residential
subdivision development
applications/uses a
discretionary use under the
Town’s Development
Regulations.
Same as Option 2.
Same as Option 2:
Same as Option 1.
Include potential future
cost implications of
restricting new residential
subdivision development
approvals.
SGE Acres Limited
4-6

St. Philip`s Background Report for Municipal Plan and Development

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