HomeMy WebLinkAboutCBRM ICSP Final Report March 30, 2010CAPE BRETON REGIONAL
MUNICIPALITY INTEGRATED
COMMUNITY SUSTAINABILITY
PLAN
Prepared on behalf of Cape Breton Regional
Municipality, Nova Scotia, in compliance with
the requirements of the Municipal Funding
Agreement for Nova Scotia
March 30, 2010
Cape Breton Regional Municipality Integrated Community Sustainability Plan
Final ICSPReport
EXECUTIVE SUMMARY
The requirement for this Integrated Community Sustainability Plan or ICSP follows from the commitment of
the Federal government to assist municipal governments pursuant to the Agreement on the Transfer of
Federal Gas Tax Revenues under the New Deal for Cities and Communities. The ultimate ICSP report must
meet the sustainability objectives and requirements outlined by Service Nova Scotia and Municipal Relations
in their Municipal Funding Agreement (MFA) for Nova Scotia.
The MFA emphasizes the importance of community consultation in the development of an effective ICSP.
Stantec undertook the following initiatives to engage the public attracting the participation indicated:
Blog Site, December 4, 2009 - , 2,501 views at March 30
Strategic Interviewing, November 30, 2009-March 20, 2010, 20 individuals or groups interviewed
Issue-based Focus Groups, 50 participants in four group sessions
Web Survey, 159 completed questionnaires
Mayflower Mall Kiosk, January 12-14, 2010, 60 contacts
Town Hall Meeting #1, January 12, 2010, 20 participants
Rural Focus Groups, January 13, 2010, 23 participants in two group sessions
Town Hall Meeting #2,Glace Bay, 3 participants
Symposium/Open House, January 21, 2010, 60 participants
Visioning Session, January 21, 2010, 40 participants.
Discussion, survey work, interviews, and research identified critical challenges and opportunities in the
community. A particularly strong source of concern is the substantial population loss that the region has
experienced as its coal mines and steel mill, which were once the mainstays of “Industrial Cape Breton,”
gradually declined until their closure during the 1996 to 2001 Census period. The demise of Cape Breton’s
industrial base has resulted in a shift to service employment but new jobs in sectors such as retailing, health
care, and tourism have not been sufficient to compensate for the thousands of positions once provided by the
mill and mines. As a result, many residents, especially young adults, have left for larger centres and stronger
industrial labour markets.
The region, nevertheless, has prospects for growth. Most residents are particularly optimistic for the
development of the Port of Sydney. As this ICSP has been prepared, the local coal mining industry has been
modestly revived by the Xstrata announcement that they plan to proceed with the redevelopment of the mine
in Donkin. Cape Breton University and the Nova Scotia Community College, Cape Breton Regional Hospital,
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development of green energy opportunities, tourism, and the initiative of First Nations Reserves are additional
drivers for economic growth.
The decline of local industries and the associated loss of population have probably had some benefits for the
local environment; however, they have placed the Regional Municipality in a difficult position maintaining
infrastructure developed for a much larger population distributed to serve economic functions that have
ended. The Municipality has done a commendable job meeting its responsibilities cost effectively but the
challenge is growing as population and municipal revenue decline. While CBRM will continue to strive for
operational efficiencies, assistance from the Provincial and Federal governments is needed.
Based on input from the Visioning Session and further consideration of the priorities expressed by
members of the public Stantec developed following Vision Statement for CBRM:
CBRM is a self-sufficient, vibrant community taking advantage of its Atlantic location, unique
cultural heritage, and pristine environment to meet the challenges of rebuilding a diverse
economy to provide a high quality of life to its citizens, a rich experience for its visitors, and a
positive contribution to the world beyond its borders.
It is important to recognize that this statement not a description of Cape Breton Regional Municipality
today. It is intended to describe the CBRM that residents hope to create over the coming 20 years.
Stantec staff, working from the session outputs, derived the following Goals from this Vision. The Goals were
reviewed with the ICSP Committee and associated statements were subsequently crafted by the consultants:
Self-sufficiency – To increase the role of local products, services, and creativity in the growth of CBRM’s
economy and society.
Vibrancy – To create lively communities offering places and events to engage citizens and visitors in the
rich culture and creativity of CBRM.
Economic Reconstruction – To build a strong, stable economy to provide rewarding employment for
citizens and the wealth required to preserve and sustain CBRM.
Diversification – To pursue available and realistic opportunities to grow a productive and varied economy
in CBRM.
Coastal Location – To take advantage of CBRM’s unique location on the North Atlantic as a source of
wealth, an advantage for export, and an attraction to visitors.
Environment – To preserve and enhance the pristine environment of CBRM as a key element of CBRM’s
economy, an attraction to visitors, and a legacy to future generations.
Cultural Heritage – To cultivate and promote the artistic, musical, and cultural accomplishments of CBRM
residents as a basis for social and economic as well as cultural development.
Quality of Life – To enhance the economic and social well-being of current and future generations and
communities in CBRM.
Tourism – To position CBRM as a world class tourist destination by promoting its culture and
environment.
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Global Outlook – To share the creativity and productivity of CBRM’s citizens and industries with the world
through the trade of products, services, and ideas.
Within the framework created by the Vision and Goal Statements, the consultants developed 118 Actions
proposed to promote the sustainability of CBRM with the following aims:
Social – Encourage the development of a vibrant urban core in which sound housing is conserved and
business areas are upgraded. Attract immigrants and appeal to youth but also ensure that CBRM and,
especially its core areas, are friendly to an aging population.
Cultural– Protect, preserve, and promote the culture and heritage of CBRM by coordinating the extensive
efforts of cultural and heritage groups. Develop urban cultural assets but also improve access to
ecological and adventure tourism experiences available in rural areas.
Economic – CBRM taking a more active role in retaining existing business and attracting new business
based on the still substantial market available in CBRM and the skilled labour force within the community.
Develop Sydney Harbour and related opportunities. Develop resource opportunities and grow small
business. Establish CBRM as the regional service/retail centre for Cape Breton Island and work with First
Nations groups to position the region as the leading centre of aboriginal education and enterprise in
Atlantic Canada.
Environmental – Protect coastal areas and watercourses through wastewater treatment and adoption of
planning measures to protect surface and groundwater from the detrimental impacts of development and
human activity. Develop wind, geothermal, and ‘green’ applications of coal. Promote and enhance
facilities for public transit and Active Transportation.
Governance – Ensure that CBRM continues to be a model of cost effective operation bringing green
practices into municipal operations and developing a sustainable pattern of land development. Pursue fair
support from senior governments to ensure the maintenance of basic infrastructure and services required
to sustain the community.
The ICSP lists Actions that are specifically eligible for Green Municipal Funding, and identifies changes to the
Municipal Planning Strategy for consideration of CBRM residents and Council that may promote the
achievement of recommended Actions. It also addresses the compliance of this ICSP with Statements of
Provincial Interest as required under the MFA.
The ICSP is intended to be a dynamic document. To be effective its Actions must be implemented and their
implementation evaluated in relation to the Vision and Goals Statements. The ICSP includes an
Implementation Plan that calls for the creation of an ICSP Implementation Committee modeled on the ICSP
Committee that has overseen the preparation of this plan. The new Committee, which will preferably
incorporate members of the current committee and in the longer term may include appointed public
representatives, will continue to work with Municipal staff and the public to promote sustainability across
CBRM. The Implementation Committee will also oversee the annual review of ICSP, leading to its
comprehensive Five-year Review.
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TABLE OF CONTENTS
EXECUTIVE SUMMARY ................................................................................................................ E.1
1.0INTRODUCTION ....................................................................................................................... 1
1.1The Requirement for an ICSP ................................................................................................... 1
1.2ICSP Process ............................................................................................................................ 2
1.3Historical Development of CBRM .............................................................................................. 3
1.4Creating a Sustainable CBRM ................................................................................................... 5
2.0RESEARCH AND COMMUNITY CONSULTATIONS ............................................................... 9
2.1Research and Consultation Process ......................................................................................... 9
2.2Recent Issues .......................................................................................................................... 10
2.3Research Processes ............................................................................................................... 10
2.3.1Strategic Interviewing .................................................................................................. 11
2.3.2Issue-based Focus Groups ......................................................................................... 12
2.3.2.1Environmental ............................................................................................................. 12
2.3.2.2Social .......................................................................................................................... 13
2.3.2.3Cultural ....................................................................................................................... 14
2.3.2.4Economic .................................................................................................................... 15
2.3.3Rural Focus Groups .................................................................................................... 15
2.3.3.1Rural Focus Group I.................................................................................................... 16
2.3.3.2Rural Focus Group II................................................................................................... 17
2.3.4ICSP Web Survey ....................................................................................................... 18
2.3.5Draft ICSP Consultation .............................................................................................. 20
2.3.6ICSP Blog Site ............................................................................................................ 20
2.4Public Consultation .................................................................................................................. 20
2.4.1Mall Kiosk .................................................................................................................... 24
2.4.2Town Hall Meetings .................................................................................................... 26
2.4.2.1Northside Town Hall ................................................................................................... 26
2.4.2.2Eastern Town Hall ...................................................................................................... 27
3.0SUSTAINABLE PLANNING ISSUES AND TOPICS .............................................................. 29
3.1Demography ............................................................................................................................ 29
3.2Land Use ................................................................................................................................. 31
3.3Economy.................................................................................................................................. 38
3.3.1Current Trends ............................................................................................................ 38
3.3.2Resource Sector ......................................................................................................... 41
3.3.2.1Agriculture ................................................................................................................... 41
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3.3.2.2Fisheries ..................................................................................................................... 42
3.3.2.3Forestry ....................................................................................................................... 43
3.3.2.4Mining, Oil and Gas .................................................................................................... 44
3.3.3Port Development ....................................................................................................... 44
3.3.4First Nations ................................................................................................................ 47
3.3.5Development Opportunities ........................................................................................ 48
3.3.6Economic Challenges ................................................................................................. 53
3.4Housing ................................................................................................................................... 54
3.5Environment ............................................................................................................................ 57
3.6Infrastructure ........................................................................................................................... 59
3.6.1Community and Recreation Facilities ......................................................................... 60
3.6.2Fire and Police Services ............................................................................................. 61
3.6.3Water .......................................................................................................................... 62
3.6.4Storm and Sanitary Sewer .......................................................................................... 62
3.6.5Streets and Sidewalks ................................................................................................ 68
3.7Transit ...................................................................................................................................... 70
3.8Solid Waste Management ....................................................................................................... 72
3.9Governance ............................................................................................................................. 73
3.9.1Expenditures ............................................................................................................... 74
3.9.2Revenue ...................................................................................................................... 75
3.9.3Council ........................................................................................................................ 77
3.9.4Planning and Cost Control .......................................................................................... 78
3.9.5Economic Development .............................................................................................. 82
3.9.6The Role of Senior Governments ............................................................................... 85
3.9.7Equalization ................................................................................................................ 86
4.0VISION AND GOALS .............................................................................................................. 88
4.1ICSP Symposium .................................................................................................................... 88
4.2Visioning Session .................................................................................................................... 90
4.3Vision and Goals ..................................................................................................................... 93
5.0SUSTAINABLE DEVELOPMENT OBJECTIVES AND ACTIONS ......................................... 95
5.1Social ....................................................................................................................................... 95
5.2Cultural .................................................................................................................................... 98
5.3Economic ................................................................................................................................. 99
5.4Environmental ........................................................................................................................ 103
5.5Governance ........................................................................................................................... 106
6.0ELIGIBLE PROJECTS, SUSTAINABLE OUTCOMES AND COMMUNITY BENEFITS ...... 109
7.0PARTNERSHIPS AND COLLABORATIONS ....................................................................... 113
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8.0POTENTIAL MUNICIPAL PLANNING STRATEGY CHANGES .......................................... 120
9.0STATEMENTS OF PROVINCIAL INTEREST ...................................................................... 148
10.0IMPLEMENTATION AND MONITORING ............................................................................. 151
10.1Implementation ...................................................................................................................... 151
10.1.1ICSP Implementation Committee .............................................................................. 151
10.1.2Public Engagement ................................................................................................... 152
10.1.3Internal Sustainability ................................................................................................ 153
10.1.3.1Alignment of Programs, Policies and Plans .............................................................. 154
10.2Monitoring and Evaluation ..................................................................................................... 154
10.2.1Indicator Reporting .................................................................................................... 154
10.2.2Action Mapping Updates ........................................................................................... 159
10.2.2.1Question 1: Is the Action warranted given the status of the Goal? ........................... 159
10.2.2.2Question 2: Is this an appropriate type of Action? .................................................... 159
10.2.2.3Questions 3: Can the work and expense be shared with others? ............................. 160
10.2.3Annual ICSP Progress Report .................................................................................. 162
10.2.4Annual ICSP Open House/Community Meeting ....................................................... 164
10.2.5Five-year Plan Review .............................................................................................. 165
11.0APPENDICES ....................................................................................................................... 166
APPENDICES
APPENDIX A ICSP Web Survey, Response Summary, February 15, 2010
APPENDIX B Sustainability Submissions, Spring 2009
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LIST OF TABLES
Table 1.1Nova Scotia Municipal Funding Agreement Schedule ................................................. 2
Table 2.1CBRM ICSP Consultation Program and Participation .................................................. 9
Table 2.2Sustainable Planning Issues, CBRM, 2007-2009 ...................................................... 10
Table 2.3Priorities for Sustainability, CBRM ICSP Web Survey, 2010 ..................................... 19
Table 2.4Daily Views, CBRM ICSP Blog, December 4, 2009, to February 28, 2010 ............... 22
Table 3.1Population, CBRM Municipal Units Before Amalgamation, 1986-1991 ..................... 36
Table 3.2CBRM, Employment by Industry (North American Industry
Classification System 2002), 2006 ............................................................................. 39
Table 3.3Labour Force and Location Quotients, CBRM, 1996-2006 ...................................... 40
Table 3.4Place of Work, CBRM Residents,2006 ..................................................................... 40
Table 3.5Gross Farm Revenue, Cape Breton, 2001 and 2006 ................................................. 42
Table 3.6Landings by Species, CBRM and Cape Breton, 2006-2008 ...................................... 43
Table 3.7Proposed Improvements, Port of Sydney Master Plan, 2007 .................................... 45
Table 3.8Infrastructure Recommendations, CBRM Port to Port Study, 2008 ........................... 46
Table 3.10Housing Characteristics, CBRM and Nova Scotia, 2006 ........................................... 56
Table 3.11Water Treatment Facilities, CBRM, 2009 ................................................................... 64
Table 3.12Existing Sanitary Sewer Infrastructure, CBRM, 2009 ................................................ 66
Table 3.13Proposed Sanitary Sewer Infrastructure Costs, CBRM, 2009 ................................... 67
Table 3.14Roadways, CBRM, 2009 ............................................................................................ 68
Table 3.16Recent and Future Solid Waste Capital Expenditures, CBRM, 2009 ........................ 73
Table 3.17Rank of CBRM Among Nova Scotia Municipal Units by
Expenditure per Capita, 2008 ..................................................................................... 76
Table 3.19Occupied and Vacant Business Park Lands, CBRM, 2009 ....................................... 83
Table 3.20Economic Development Organizations, Cape Breton, 2010 ...................................... 84
Table 4.1ICSP Symposium Program ......................................................................................... 89
Table 10.2Priority Action Implementation Table Procedure ...................................................... 161
Table 10.3Sample ICSP Report Card, City of Hamilton, Ontario ............................................. 163
Table 10.4ImplementationSchedule ......................................................................................... 165
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LIST FIGURES
Figure 2.1ICSP Blog Statistics, December 28, 2009, to February 28, 2010 .............................. 23
Figure 2.2ICSP Kiosk ................................................................................................................. 24
Figure 2.3ICSP Kiosk Panels ..................................................................................................... 25
Figure 3.1CBRM Population as Percentage of HRM, and Other Nova Scotia, 1871-2006 ....... 29
Figure 3.2Population, CBRM, HRM, and Other Nova Scotia, 1871-2006 .................................. 30
Figure 3.3Pecentage of Population in Child-bearing Years and Number of Children,
CBRM, 1991-2026 ...................................................................................................... 31
Figure 3.4Population by Age Group, Cape Breton CA, 1991-2026 ............................................ 32
Figure 3.5aCommunities and Attractions, CBRM ......................................................................... 33
Figure 3.5b Community Facilities, Urban Core .............................................................................. 34
Figure 3.6Land Use Urban Core ................................................................................................. 35
Figure 3.7Population, CBRM Sub-areas, 1991-2026 ................................................................. 38
Figure 3.8Household Formation, Cape Breton, 1991-2006 ....................................................... 55
Figure 3.9Communities with Water and Sewer Services, Urban Core ....................................... 63
Figure 3.10Transportation Facilities and Transit Routes, Urban Core, 2009 ............................... 71
Figure 3.11Operating Expenditures, CBRM, Pre- and Post-amalgamation ................................. 75
Figure 3.12Total Tax Revenue (constant 2008$), CBRM and all Nova Scotia
Municipal Units, 2004-2008 ........................................................................................ 77
Figure 4.1ICSP Symposium ....................................................................................................... 88
Figure 4.2ICSP Visioning Session .............................................................................................. 90
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1.0 INTRODUCTION
1.1 The Requirement for an ICSP
The requirement for this Integrated Community Sustainability Plan or ICSP follows from the commitment of
the Federal government to assist municipal governments pursuant to the Agreement on the Transfer of
Federal Gas Tax Revenues under the New Deal for Cities and Communities. The ultimate ICSP report must
meet the sustainability objectives and requirements outlined by Service Nova Scotia and Municipal Relations
in their Municipal Funding Agreement (MFA) for Nova Scotia. The MFA identifies three optional templates for
developing ICSPs in Nova Scotia:
For Municipalities with Comprehensive Municipal Planning Strategies and Land Use Bylaws (Template
#1)
For Municipalities with Single-Issue Municipal Planning Strategies (Template #2)
1
For Municipalities Preparing Stand-alone ICSPs (Templates #3).
CBRM has a Municipal Planning Strategy (MPS) and Land Use Bylaw (LUB); however, the regional
documents were recently adopted and the Municipality has chosen to follow Template # 3 and prepare a
Section 8.0
Stand-Alone ICSP. of this ICSP, nevertheless, suggests amendments to the MPS and LUB that
may be considered to reinforce the intent of its Vision and facilitate the implementation of specific actions set
Section 5.0
out in .
The notion of sustainable development often seems fuzzy but it was defined succinctly more than 20 years
ago in the report of the World Commission on Environment and Development as “…development that meets
2
the needs of the present without compromising the ability of future generations to meet their own needs.”
While this is a straightforward concept, it has many dimensions. In recognition of this, the Province of Nova
Scotia has structured the consideration of sustainability around four “pillars of sustainability”: the environment,
the economy, culture, and society. The Funding Agreement for Nova Scotia, however, makes it clear that the
latter three pillars are subsidiary to the first.
For this ICSP, the Terms of Reference issued by CBRM and discussions with CBRM ICSP Committee
members in the course of this project have emphasized the scale of economic challenges faced by the region.
There is no question that economic decline has already transformed the community and may eventually
1
Service Nova Scotia and Municipal Relations, Integrated Community Sustainability Plans: Municipal Funding
Agreement for Nova Scotia, September 2007, pp. 13-15.
2
World Commission on Environment and Development (WCED), Our Common Future, Oxford: Oxford University
Press, 1987, p. 43. The Commission’s famous report is often referred to as the Brundtland Report after its chair,
then Norwegian Prime Minister Gro Harlem Brundtland.
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threaten its position as a leading urban centre in Nova Scotia. This additionally justified the identification of
Governance as a fifth pillar in the Terms of Reference that guided the development of this ICSP. The
importance of the Economic and Governance pillars for CBRM does not, however, invite the compromise of
the natural environment. Environmental stewardship is an essential tool of contemporary economic
development and remains an important component of this ICSP.
The Funding Agreement for Nova Scotia states that an ICSP is intended to be “a long-term strategic planning
document.” The purpose of a strategic plan is to define the direction of an organization with respect to the
enhancement of the welfare of those who it serves. As such, it provides a framework for the allocation of
capital and human resources to meet organizational goals. In the context of a municipal government, the
goals of a strategic plan are primarily intended to enhance the welfare of citizens under its jurisdiction.
The goals of sustainability are clearly much broader than their impact on just one community, however.
Recognizing the primacy of environmental concerns, the Funding Agreement states that “[a]ll infrastructure
projects undertaken under the terms of the MFA should contribute to at least one of the federal and provincial
desired outcomes of cleaner air, cleaner water, and reduced greenhouse gas emissions.” While the benefits
of such improvements through this ICSP will most definitely accrue to the residents of CBRM, they will also be
enjoyed by residents of other municipal units on Cape Breton Island, the province of Nova Scotia, and, to
some degree, the wider world.
1.2 ICSP Process
Table 1.1 Nova Scotia Municipal Funding
The Municipal Funding Agreement for
Agreement Schedule
Nova Scotia sets out the obligations of
Signing of the Municipal Funding Agreement, audited
Year One
municipalities wishing to receive funding
financial statements, and submission of a municipal
(2005–2006)
capital budget
over a five-year period from 2005 through
Table 1.1
Submission of a three-year capital budget and
2010 (). The ICSP is required at
Year Two
audited annual expenditure report, audited financial
the end of the Funding Agreement
(2006–2007)
statements, and full compliance with the Municipal
schedule. As such, it is a jumping off
Funding Agreement
point from the established process and
Submission of an updated three-year capital budget,
Year Three
required annual expenditure report, audited financial
into the next cycle of municipal activity.
(2007–2008)
statements, and full compliance with the Municipal
Funding Agreement
CBRM has received roughly $10.5 million
Submission of a completed capital investment plan,
Year Four
through the Funding Agreement since
updated three-year capital budget, audited annual
(2008–2009)
expenditure report, required outcome measures
2005. The majority of this money has
report
been invested in the development of the
Submission of an updated capital investment plan,
Year Five
municipal composting facility in
updated three-year capital budget, required annual
(2009–2010)
Harbourside Commercial Park on the
expenditure report, audited financial statements,
ICSP submission
former Steel Plant lands. The program
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contributed more than $7 million to the construction of the composting facility from 2006 through 2009. The
facility opened in late 2007 but continues to be upgraded. Investment in the facility has accounted for 67.4 per
cent of program funding to date.
Other funded projects were generally much more modest. The second largest project, the Dominion
wastewater treatment plant, took just 5.3 per cent of the allocated monies. The remaining quarter of program
Table
monies were spread among smaller projects largely addressing local sanitary and storm sewer issues (
1.2
).
Table 1.2 Capital Investment Program, CBRM, 2005-2010
Annual Cumulative
Project
June09/23/05–
May 2006July 2008August 2009
2007 03/31/09
Miscellaneous Projects $1,869,208 $0 $336,050 $554,087 $2,759,345
Compost Facility Solid Waste $2,592,215 $1,461,977 $3,083,928 $7,138,120
Dominion Sewer Treatment $62,407 $503,480 $565,887
Solid Waste Leachate Sewer System $134,908 $134,908
Total Spent on Eligible Projects $1,869,208 $2,592,215 $1,860,434 $4,276,403 $10,598,260
Source
: CBRM
1.3 Historical Development of CBRM
Thrust as it is into the North Atlantic, Cape Breton was one of the first areas of North America reached by
thth
Europeans in the late 15 century. The island was settled by the French by the 17 century. In 1719 the
French selected Louisbourg within CBRM as the site of their primary North Atlantic fortress; however, the
town fell to New Englanders in 1745 and British regulars in 1758, after which it and the balance of Cape
Breton Island were ceded to Great Britain under the Treaty of Paris in 1763.
Cape Breton was annexed to Nova Scotia following the British takeover but became a separate colony from
1784 to 1820 with Sydney as its capital. Sydney’s founding actually followed the political separation of Cape
Breton from the mainland. It was established on the southwest portion of what is now Sydney Harbour in
1785.
The history of the urban core of CBRM did not, however, begin in earnest until Cape Breton was once again
united with the mainland in 1820. The key motivation for amalgamation at that point was the ambition of the
British to develop the abundant coal resources in the area around Sydney. The development of various mines
in the area resulted in the growth of new settlements such as Glace Bay, New Waterford, Sydney Mines, and
Reserve Mines each of which corresponded to a mine head. In the late nineteenth century, after
Confederation, the area thrived as a supplier of coal to the newly formed Dominion of Canada.
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Development of the regional economy took off at the turn of the century when the owners of the Dominion
Coal Company, which operated mines on the south side of Sydney Harbour, formed the Dominion Iron &
Steel Company Ltd. (DISCO) and built a major steel plant in Sydney. Although it was financially troubled
through most of its existence, the plant provided many jobs and attracted significant in migration to the area
and a mix of Eastern European, Middle Eastern, and Caribbean residents, who added to the longer standing
French Acadian and Scottish Gaelic groups, and native aboriginal population. When the plant and mines hit
their peak during World War II and its immediate aftermath, the Dominion Steel and Coal Corporation
(DOSCO), which by then had replaced DISCO, was the largest private employer in Canada.
The decline of the mill through the 1950s was, however, dramatic. Combined with declining demand for coal
in the face of the development of alternative fuel sources and increasing competition in the steel industry,
DOSCO began to close mines in northern Nova Scotia and Cape Breton. In 1965, when the company
announced that the fields around Sydney were nearly exhausted and that it planned to exit the industry, the
Federal government responded to public outcry by forming the Cape Breton Development Corporation or
DEVCO, a Federal Crown corporation. The Province of Nova Scotia, for its part, established its own Crown
Corporation, the Sydney Steel Corporation (SYSCO), which took over the steel mill in 1968 with the intention
of selling it within 12 months.
The Donald Commission, which assessed the state of the coal and steel industries in Cape Breton on behalf
of the Federal government in the 1960s, did not fundamentally disagree with the opinion of DOSCO that the
mines were near the end of their life. DEVCO was formed with a plan to phase out coal mining operations by
1981. The oil crisis of the 1970s, however, led to a reassessment by the Trudeau government and for a time
DEVCO opened new mines. Expansion included opening of the Phalen and Lingan collieries near New
Waterford, and the Prince colliery on Boularderie Island in the seventies but the industry resumed its long-
term decline by the 1980s. By the end of the eighties, DEVCO had closed all of the former DOSCO mines and
by the late 1990s it was closing the three mines it started in the seventies.
SYSCO provided a parallel story. The Provincial government could not sell the steel plant in 1968 and ended
up holding the operation for 33 years. Like the coal mines, the mill revived slightly in the 1970s using heavily
subsidized coal from DEVCO. Ultimately, the plant too could not be sustained and was eventually shutdown
in 2001 leaving a considerable, problematic environmental legacy that has since been both a major concern
and a source of economic activity in the region.
The City of Sydney, the five towns that flanked it around Sydney Harbour, the Town of Louisbourg, and the
County of Cape Breton were amalgamated in 1995 partly in response to the financial challenges created by
the decline of the coal mining and steel industries. In the 15 years since, the mines and the plant have
shutdown, and population has contracted and aged markedly. The current population of CBRM is now barely
80 per cent of the area’s peak population, which was achieved in 1961. The proportion of population under
the age of 15 year declined from 21 per cent in 1996 to just 15 per cent in 2006, and is no doubt continuing to
fall.
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These issues are not unique to CBRM. Most rural areas and many other smaller cities in Canada are
experiencing population losses and substantial increases in their median ages. Halifax, which is regarded in
most of Atlantic Canada as fast growing, has also seen its median age rise considerably. The population of
Canada is aging and the population of many European countries has already aged considerably more than
Canada. Many of these areas are prosperous and for most there is no indication that population aging or even
slower growth has compromised quality of life. Indeed, by conventional measures of prosperity, Canada and
the aging nations of western and northern Europe remain the envy of much of the world that continues to
struggle with over population and scarcity of both of life’s necessities and luxuries.
In Cape Breton, however, the issue has been substantially exacerbated by the region’s economic upheaval.
On one level, migration from CBRM is a market response to the loss of economic opportunities. CBRM has
however reached a point where the maintenance of existing infrastructure has become a substantial
challenge. Municipal staff and the community have risen to the challenge of maintaining their community
within the context of declining resources but continued decline may require planned contraction of public
infrastructure that is no longer required.
CBRM, nevertheless, continues to have a great deal to offer to its current and prospective residents. Much of
the region borders on Atlantic waterfrontage. Sydney has an ample harbour that is welcoming increasing
numbers of cruise ships and is capable of handling major industrial cargoes. The Marconi Campus of the
Nova Scotia Community College (NSCC), Cape Breton University, and the Cape Breton Regional Hospital
are important employment centres and key amenities that set the region apart from many other communities.
The natural beauty of the area and its heritage also provide an excellent foundation for tourism industry. The
Bras d’Or Lakes have been rated among the leading natural tourist attractions in the world and the restored
fortress at Louisbourg is second to no other historical site in Canada. Much can still be built on these and
many other assets of the region, particularly the skills and energy of over 100,000 people who continue to live
here.
1.4 Creating a Sustainable CBRM
The demographic reality of CBRM is clear. The region has lost substantial population over the short and long-
terms. Even if the local economy turns around, as it appears it is doing to a degree, the region’s population
profile will not facilitate rapid recovery. The relative lack of family-aged adults significantly reduces the ability
of the population to grow through natural increase. This situation seems most likely to deepen as time
advances and residents continue to age.
This situation is not unique to Cape Breton, just more exaggerated. Nova Scotia has the second oldest
population of any province in Canada, and Canada itself has a relatively old population in the international
context. Population projections prepared by Health and Welfare Canada in the 1980s predicted that the
country would reach a position in which its old would outnumber its young by 2031. In its report on this trend,
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Cape Breton Regional Municipality Integrated Community Sustainability Plan
Final ICSPReport
Introduction
Health and Welfare’s authors noted that Sweden, among other European countries was already close to this
3
situation in 1985. Little has happened in the interim to alter expectations for Canada.
In some respects, the demographic evolution of CBRM has parallels to the current concern with climate
change. The causes of both are substantially beyond the control of individuals or even communities, although
actions can be taken at both levels that can mitigate undesirable effects. Ultimately, however, individuals and
their communities must accept that they will be subject to impacts and their best response is to prepare and
adapt.
Health and Welfare’s report noted, for example, that Sweden was “a prosperous and dynamic country” and it
has continued to be for 20 years since. It added:
The future for Canada is that of a society with a larger proportion of older people and a
smaller proportion of younger people. However, with proper planning and careful utilization of
4
resources, it need be no less dynamic and prosperous than it is today.
Similarly with CBRM’s decreasing and aging population, the changes that have taken place are not entirely
negative. The environment, certainly, has benefitted with substantial reductions in air and water pollution, as
well as the cleanup of the steel plant and related lands. These changes should have benefits for the health of
residents, and have made Sydney and the surrounding urban core a more attractive residence and
destination for tourists.
The challenges before CBRM are, of course, considerably greater than for Sweden over the past 20 years or
for Canada in the near future. The region has not been able to provide enough jobs for its residents for
decades. Without work many have, unfortunately, had to leave, if not for new homes elsewhere, at least for
new jobs. As this has happened, however, the local unemployment rate has fallen modestly but noticeably. In
our consultations, as a matter of fact, we have heard at least as often about current labour shortages in the
construction industry and the health care sector as we have about a lack of jobs.
Some communities that have experienced the kind of economic upheaval that has occurred in CBRM have
successfully re-established themselves as regional centres. Pittsburgh, which was a much larger “steel city”
than Sydney, is one excellent example. The City of Pittsburgh lost half its population going from over 600,000
to barely 300,000 between 1950 and 2000 but repositioned itself over that time and is now regarded as one of
the most resilient cities in the United States.
A similar community closer to home is Moncton, New Brunswick, which lost its industrial base in the 1990s
but quickly recovered by attracting call centres like CBRM, and asserting itself as a retail centre and the
3
Health and Welfare Canada, Charting Canada’s Future: A Report of the Demographic Review, Ottawa, Minister
of Supply and Services, 1989, pp. 18-19. The report further notes (p. 24) that even increased immigration will not
greatly alter this as immigrants soon blend into the country’s population and age with it.
4
Ibid., p. 19.
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Cape Breton Regional Municipality Integrated Community Sustainability Plan
Final ICSPReport
Introduction
primary centre of Acadian culture in Atlantic Canada. Despite the loss of the Eaton’s catalogue centre, CFB
Moncton, and the CN shops in the 1980s, Moncton’s metropolitan area has actually increased its population
by nearly 20 per cent in the years since.
CBRM’s population has of course never been close to Pittsburgh’s and it does not have the same locational
advantages that Moncton has exercised. It does however have a substantial number of residents and
important assets of its own. The beauty of the surrounding landscape, the potential of the port, and the
productivity of its unique culture are key features that were cited during the consultation process for this ICSP.
CBRM also shares many important drivers with both Pittsburgh and Moncton. Although CBRM’s market area
is relatively small, the population of Cape Breton Island remains well over 100,000 and is more than adequate
to support CBRM’s urban core as a service centre. Like Pittsburgh and Moncton, CBRM also hosts several
post-secondary institutions that have a role to play in its repositioning. As a one-time industrial magnet that
drew population from diverse corners of Canada and the world, CBRM has also developed an open society
that is accepting of new cultures and differences, a condition that is important to attract and accommodate
contemporary immigrants.
These assets and opportunities are well understood in CBRM. We have worked with few communities in
which citizens have given as much thought to the issues of community economic development as
communicated by the participants in this ICSP process. The input of citizens participating in Focus Groups
and other public sessions discussed below make this clear. Residents realize that they must work together to
develop their assets and to make opportunities such as the development of the port a reality.
It is equally important, however, to manage existing resources effectively and, even, to consolidate where
necessary. As Health and Welfare Canada asserted in the 1980s, the key is “proper planning and careful
utilization of resources.” Evidence assembled for this ICSP indicates that CBRM has done a good job in this
regard since its amalgamation in 1994 but the challenges are not likely to ease. Maintaining facilities targeted
to declining age cohorts or areas, simply denies funds to adapt facilities that can continue to fill a useful role
and to build new facilities that can address emerging needs.
This means difficult choices to close and decommission schools, churches, homes, fire stations, community
halls, arenas, ball fields, and other facilities that are no longer justified by demand. The benefit of doing so will
be to free resources to adapt facilities and strengthen some existing services, while providing new services
strategically. Based on analysis of trends and the input of the community through this ICSP process this
suggests enhanced transit, and walking and cycling trails from the Municipality. It also means emphasizing
services in Sydney and its immediate environs where key health care and educational services are
established and to which population has begun to gravitate.
From other levels of government it means maintenance of services required to serve what remains, after all,
the second largest concentration of population in Nova Scotia. It also will require fair support to municipal
government to provide services at a level comparable with other areas of the province. It furthermore means
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Cape Breton Regional Municipality Integrated Community Sustainability Plan
Final ICSPReport
Introduction
continued and even more focused assistance from senior governments working with CBRM to encourage
growth in tourism, mining, local agriculture, and fishing, and knowledge-based industries grown with the
assistance of local post-secondary institutions.
The Vision of this ICSP is not to recreate the thriving industrial community of CBRM’s past. While mining and
industrial development can most certainly have a place in the region’s future economy, residents envision a
new region with a more diverse economy built around its rural beauty and its urban energy. It will most
certainly build on the past but it will also look to the future. It will provide homes and jobs for its residents as
well as amenities and services to ensure their security, health, and well-being. It will also continue to play a
role on the international stage as a rising port, a tourist destination, and a contributor of goods, services, and
ideas.
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Cape Breton Regional Municipality Integrated Community Sustainability Plan
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2.0 RESEARCH AND COMMUNITY CONSULTATIONS
2.1 Research and Consultation Process
At the outset of the ICSP process, Stantec proposed a public consultation plan to engage citizens of CBRM in
the preparation of their Sustainability Plan. The plan was reviewed by the ICSP Committee in December 2009
and some modifications were made, most notably the addition of two Focus Groups to investigate rural issues
in the municipality and Town Hall meetings to provide accessible opportunities for participation to residents of
the Northside and Eastern areas, in consideration that all other events were planned for Sydney.
Table 2.1
provides a summary of all consultation initiatives and events undertaken. Consultation meetings,
activities, and events were completed in January; however, other consultation processes continued
afterwards. The Web survey, for example, closed on February 8 and the ICSP Blog site will be maintained to
the close of the project. Strategic Interviewing has also been conducted throughout the project and additional
interviews will be conducted as beneficial to the completion of all work. Not all events have been completely
successful, with the Town Hall sessions being notably poorly attended. In total, nevertheless, the consultation
process has involved 262 direct contacts, although some individuals were involved in several sessions. The
Blog site, as indicated in the table and discussion below, attracted good traffic, having recently topped two
thousand views. The survey obtained 159 responses, which is reasonably representative but short of the
number required to achieve the desirable confidence interval of 5.0 per cent.
Table 2.1 CBRM ICSP Consultation Program and Participation
Event Location Dates Participation
2,490 views at
Blog Site N/A Monday, December 4, 2009 -
March 29
20 individuals
Strategic Interviewing N/A Monday, November 30, 2009
or groups
Thursday, December 14, 2009 -
Issue-based Focus Groups Delta Hotel, Sydney 6/8/20/16
Friday, December 15, 2009
Monday, January 4, 2010 - 159 completed
Web Survey N/A
Monday, February 8 ,2010 questionnaires
Tuesday, January 12, 2010 -
Kiosk Mayflower Mall, Sydney
60
Thursday, January 14, 2010
Town Hall Meeting #1 Memorial HS, Sydney Mines Tuesday, January 12, 2010 20
Rural Focus Groups East Bay Fire Hall Wednesday, January 13, 2010 13/10
Town Hall Meeting #2 Glace Bay, Fire Hall Thursday, January 14, 2010 3
Membertou Trade &
Symposium/Open House Thursday, January 21, 2010 60
Convention Centre
Membertou Trade &
Visioning Session Thursday, January 21, 2010 40
Convention Centre
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Cape Breton Regional Municipality Integrated Community Sustainability Plan
Final ICSPReport
Research and Community Consultations
2.2 Recent Issues
Given the area and still substantial population of CBRM, the Regional Council has faced a broad range of
Table 2.2
sustainability issues. provides a summary of issues identified through review of CBRM Council
minutes covering the past three years (i.e., 2007-2009) up to the beginning of this ICSP process in December
2009.
Table 2.2 Sustainable Planning Issues, CBRM, 2007-2009
SocialEconomic Cultural Environmental Governance
Apr 21/09 –
Mar 19/09 – Anti-litter Dec 16/09 – Council
Municipal Heritage
campaign
support request for full
Property, Union
Federal environmental
Jun 17/08 - CBRM
May 1/09 –
Presbyterian Church
assessment of proposed
Active Transportation
Municipal response
Jan 15/08 –
wind and hydroelectric
Plan approved in
to high costs of oil
Municipal Heritage
power project
principle
and gasoline
Property, Bank of
Dec 16/09 – Designate
Mar 18/08 –
March 18/09 –The
Montreal, 175
Bras d’or Lake
Population
international
Charlotte St.,
Watershed as a
projections for Cape
transportation
Sydney
biosphere reserve
Breton municipal
potential of the Port
Jan 15/08 –
Nov 18/08 –
units 2006-2021 May 19/09 – First reading
of Sydney
Dominion
CBRM Legal
of the draft Waste Water
Jun 17/08 – CBRM
Feb 9/09 – Strip
Schoolhouse, 6175
Action re:
Discharge By-law
Dissemination Areas
Mining and Land
Seaside Dr.,
Equalization
Feb 8/09 – Revising the
Reclamation in
Jun 17/08 – Antenna
Dominion
boundary of Pottle Lake
CBRM
wires for high-speed
Feb 19/08 –
Water Supply Watershed
wireless internet in
Nov 18/08 – Magna
Proposed Heritage
rural CBRM Dec 16/08 – Lake Uist
Powertrain layoffs
Conservation
Hydroelectric Project EA
Apr 17/07 – CBRM
District, North End
Diversity Plan
June 12/08 – Explore
Sydney
issue of climate change
Jan 16/07 – Cape
Mar 18/08 – Save
as a part of an ISCP
Breton Island
the Vogue Theatre
Pathways Dec 4/02 – Bras d’Or
Oct 16/07 – Funding
Association
Lake Clean up
for Public Libraries
2.3 Research Processes
Stantec has researched ICSP-related issues and concerns through a variety of avenues. Despite some
constraints in time or resource availability, we have nevertheless attempted to be open to solicitation from
interested individuals and groups and have met with or conferred by telephone with various contacts who
have expressed an interest in exchanging ideas. These more structured approaches provide harder data and
information that is very useful to provide the context for more qualitative consultation input summarized in
Section 2.4Subsection 4.2
, below, and in the following concerning the Visioning process.
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Cape Breton Regional Municipality Integrated Community Sustainability Plan
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2.3.1 Strategic Interviewing
In addition to Focus Group consultations, which have engaged 50 leading members of the CBRM community,
Stantec interviewed other knowledgeable individuals directly. This includes key staff with CBRM and leaders
of some other important organizations within the municipality. Interviews were completed with the following:
Marie Walsh, Director of Finance, CBRM
Doug Foster, Director of Planning, CBRM
Wayne MacDonald, Director of Engineering, CBRM
Michael McKiegan, Utilities Manager, CBRM
John Whalley, Manager of Economic Development, CBRM
Rick McCready, Planner, CBRM
Bruce Hardy, Manager, Engineering Services, CBRM
Fred Brooks, Senior Recreation Manager/Frank Bruleigh, Recreation Manager, CBRM
Kevin Gibson, Economist, Enterprise Cape Breton Corporation (ECBC)
Marlene Usher, Executive Director General, ECBC
Eileen Lannon Oldford, Executive Director, Cape Breton County Economic Development Authority
(CBCEDA)
Jim Wooder, Chairman, Sydney Marine Group/Sydney Ports Corporation
Mary Tulle, CEO, Destination Cape Breton
Dr. Tom Urbaniak, Assistant Professor, Department of Political Science, Cape Breton University
John MacDonald, Nova Scotians for Equalization Fairness
Keith MacDonald, Executive Director, Cape Breton Partnership
Danny Hansen, Department of Fisheries and Oceans
Sean Coyle, Executive Director, Sydney and Area Chamber of Commerce
Owen Fitzgerald, Executive Director, Unama'ki Economic Benefits Office
Dr. Greg MacLeod, Director, Tompkins Institute, Cape Breton University.
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Cape Breton Regional Municipality Integrated Community Sustainability Plan
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2.3.2 Issue-based Focus Groups
To further explore issues, concerns, and aspirations among community members, Stantec held Focus Groups
with individuals from the CBRM community suggested by municipal staff and members of the ICSP
Committee. The Focus Groups were organized around the four standard pillars of sustainability identified in
the Nova Scotia MFA. The groups and the number attending were as follows:
Social Focus Group, December 14, 2009 – 6 participants;
Environmental Focus Group, December 14, 2009 – 8 participants;
Cultural Focus Group, December 15, 2009 – 20 participants; and
Economic Focus Group, December 15, 2009 – 16 participants.
The Focus Groups explored the concerns and aspirations of participants in relation to the respective pillars.
Members of each group, however, addressed broader issues of sustainability including matters arguably
specific to the other pillars as well as to the issue of governance. They were not discouraged from doing so as
the interrelationships among sustainability issues are often key to their understanding and resolution.
Stantec’s Focus Group facilitator also inquired concerning appropriate approaches to consultation and
solicited suggestions concerning additional community members who might be consulted directly or otherwise
engaged in the ICSP process.
In general, participants in all groups recognized the economic challenges with which CBRM has dealt and is
continuing to deal. Nearly all participants were also aware of demographic decline that is affecting the
municipality and expressed concern with its consequences. All four Focus Groups included commentary on
the impacts of this change and suggestions on how to stem and, perhaps, reverse this trend.
Many participants also noted the closeness of the CBRM community and the value that they place on the
friendliness and support of their fellow citizens. It is impressive in a region with over 100,000 residents that
most of the participants in each Focus Group knew all of the other participants in their group. Although many
expressed concern with lack of coordination in the region, many were clearly working together on initiatives
for the community that benefit from these interpersonal connections.
2.3.2.1 Environmental
The Environmental Focus Group drew the smallest numbers of any of the four sessions conducted by
Stantec. Participants, nevertheless, engaged in a healthy and wide-ranging discussion. Notably, however,
they did not strongly raise environmental concerns. In particular, the tar ponds and extensive brownfield lands
left by the steel plant were not discussed in detail except with respect to the potential that they offer for
redevelopment.
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Sydney Harbour was mentioned but primarily by one knowledgeable participant who stated that it is far
cleaner than most industrial harbours and likely to get cleaner as wastewater treatment is instituted and the
population of the area, presumably, continues to decline. The same individual further noted that, overall, the
local environment is notably pristine and that is one of the primary attractions of CBRM to outsiders.
With two participants from the Bras d'Or Collaborative Environmental Planning Initiative (CEPI) and the Bras
d’Or Stewardship Society, the inland lakes were also discussed. While the water quality in the lakes is
described as being good, participants emphasized that their protection is essential. The issue has however
been recently studied by the consulting firm EDM and recommendations made in their report, the Bras d’Or
5
Lakes Development Guidelines. CEPI and the Stewardship Society are working to implement proposed
measures but have run into challenges with some of the municipalities bordering the lakes. CBRM, however,
has been supportive of protection measures and participants anticipate the Municipality will implement key
guidelines in the near future.
More generally, members of the Environmental Focus Group expressed concern with declining population
and the related consequences for the community. While it was generally acknowledged that fewer people are
probably better for the natural environment, participants felt that the human community could not be
disregarded. Like participants in the groups that followed, they expressed a desire for stronger, more positive
leadership and a more unified community. The cleanup of the tar ponds and the initiative to protect the Bras
d’Or Lakes are, in fact, particularly valued because they bring the community together and the achievement of
their objectives to clean up and protect the environment will ultimately be successes for the whole community.
2.3.2.2 Social
Participants in the Social group noted, at the outset, the generosity of CBRM residents toward each other.
Like participants in other Focus Groups, the Social group noted the connectedness of the community and the
value that they place on knowing so many of the people in their neighbourhoods and in their professional
lives. They also noted how supportive the community normally is of charities, and events and institutions from
sports teams to arts and cultural groups. Residents appear to look forward to opportunities to get together and
are generous in giving both time and money.
Most attendees, however, expressed concern with the outflow of population, although some views on the
issue varied. Some, for example, felt that the community could be sustainable with a predominantly senior
population. Others objected, however, that many businesses could not survive without a more diverse
economy, particularly an active business sector buying local services. Some noted, as well, that out migration
frequently divides families giving rise to additional social problems.
Participants addressed a combination of negative and positive factors in the region. One, for example, noted
the very high rates of cancer in the area, which are speculated to be the consequence of the industrial past
5
EDM Environmental Design and Management, Bras d’Or Lakes Development Guidelines, September 2008.
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and, possibly, a genetic predisposition of the predominantly Scots and Irish population. Others noted the
prevalence of addictions and the low level of literacy in the area. Several were also critical of various aspects
of municipal service delivery with specific mention of the transit system, garbage collection, and recreation
opportunities. The problem of abandoned housing was also raised.
Participants discussed the need for an increased focus on active recreation within the community and the
facilities required to support an active lifestyle. While there are trails and similar facilities within CBRM,
participants noted that some of them require maintenance. The Municipality also provides outdoor basketball
and tennis courts, which are reported to be well used. Some participants noted that access to recreational
opportunities in the winter can be limited to some citizens as indoor facilities charge rental fees.
On the positive side, some participants felt that the decline of mills and mines in the area was probably good
for the health of the local population as well as for the natural environment. The openness of the community
and its growing acceptance of diversity in all forms (i.e., racial, ethnic, and sexual preference) were also
complimented. Several expressed a sense that the economic situation had stabilized and that opportunities
were available, particularly through development of the port. Some also referenced the success of the
Membertou Band in developing their community within the region.
Some participants also noted that CBRM is not representative of Cape Breton Island as a whole. On the
contrary, one or two made the point that other municipalities on the island had similar feelings toward CBRM
as CBRM does toward Halifax, viewing it in some ways as elite and not representative of Cape Breton society
as a whole. They felt that it is important to get the whole island “on the same page.” Participants were also
critical of what they perceive to be a negative attitude in municipal government. They suggested looking at the
example of other communities that have made their way through similar challenges such as Moncton. Some
particularly alluded to the success of Membertou and the example the band has provided in establishing and
energetically pursuing a vision for improvement.
2.3.2.3 Cultural
The large number of participants in the Cultural Focus Group speaks directly to the rich and vibrant culture of
CBRM and Cape Breton generally. The region is dotted with historical societies and museums, most of which
are run by community volunteers. The area also has a vibrant music scene that is strongly promoted and
widely known across Canada, as well as a thriving visual arts community. These groups can boast many
successes large and small from the salvaging of buildings for museums, cultural centres, and other uses, to
the creation and successful staging of world class events such as the annual Celtic Colours music festival.
Given the scale and diversity of cultural groups, it was not surprising to hear a call for coordination from many
participants. Many suggested that the Province should play a more aggressive role in organizing and
promoting cultural activities in Cape Breton. In particular, several suggested that the Province, which has
withdrawn locally based support in recent years, should have staff located in the area to work with and
coordinate local groups.
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Some also suggested the region needs to develop a “signature attraction” to draw tourists to Sydney in
particular, although there were varying ideas as to what the attraction might be. Some were clearly thinking in
terms of a physical development such as an aquarium or botanical garden, but others suggested the creation
of a collection management facility to warehouse collections along with a centre to provide a consistent and
cohesive approach to the existing attractions.
All participants noted that volunteers are vital to the operation of most cultural attractions and expressed
concern about the future staffing of these facilities as volunteers in the region age. Some also noted that the
presentation of cultural attractions would benefit from a consistent approach to training seasonal staff
members at the beginning of each tourist season.
2.3.2.4 Economic
Economic Focus Group members largely came from economic development and promotion groups, although
there were representatives of business, particularly the Port of Sydney. Many members urged a more
positive, optimistic attitude in the CBRM community. Most were very critical of CBRM in this respect noting
that the municipality has made a theme of planning for decline and this attitude is very discouraging for
business. They noted that recent economic indicators were encouraging and suggested that the community
may have turned the corner or, at least, come to a plateau.
Representatives from the Port of Sydney touted the considerable potential of the harbour to handle more
varied cargoes in large quantities and this was enthusiastically received by other Focus Group participants.
More generally, participants emphasized the need to develop a “vibrant community” that might offer the kind
of environment that would be attractive to young adults who have had to leave the region in large numbers
over the past two decades. They also noted the cohesiveness of the community emphasized by participants
in other groups and the inherent potential of that unity to create an appealing place to live and work.
Focus Group participants emphasized the importance of communication among business members; in
particular, the coordination of local, regional, and international business promotion. Attendees agreed that
entrepreneurship and prudent risk taking should be promoted. The need for succession planning for existing
business owners, including the creation of formal and informal connections for succession planning, was
noted.
2.3.3 Rural Focus Groups
At the request of CBRM’s rural Councilors, Stantec arranged two additional Focus Groups to address rural
issues in the municipality. The two sessions were held back-to-back in the East Bay Firehall on Wednesday,
January 13. Participants were invited from throughout the municipality with the primary criterion being an
interest and/or involvement in rural communities or economic activities. Others not invited were welcome and
were solicited through the ICSP Blog site. Stantec’s facilitator posed very similar questions as in the Focus
Group sessions described in the preceding subsection while emphasizing the rural implications of
sustainability issues. Attendance at the groups was as follows:
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Cape Breton Regional Municipality Integrated Community Sustainability Plan
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Rural Focus Group I, January 13, 2009 – 16 participants; and
Rural Focus Group II, January 13, 2009 – 13 participants.
Discussion at both groups was energetic and insightful.
2.3.3.1 Rural Focus Group I
In the first Rural Focus Group, discussion opened with the topic of agriculture. A key issue addressed was the
lack of infrastructure to grow product locally and get it to market. Only 1 per cent of the beef consumed in
Cape Breton is grown on the island and no chicken or pork is produced at all. It was suggested that if even 5
per cent of the beef consumed was produced locally, it would boost the local economy. The absence of an
abattoir on the Island, however, adds significantly to the costs that farmers must incur for transportation. An
inactive abattoir at Point Aconi that is in the process of undergoing inspection could address this issue if
approved.
A lengthy discussion followed regarding the so called food revolution and the connected issue of food
security, focusing on the importance of supporting locally grown food and the role that it plays in ensuring
sustainability. Several comments were made with respect to the fact that much of the land previously used for
agriculture has grown over and could be used to support agricultural activities. Much discussion focused on
the need to consider small scale farming as opposed to large scale, high investment farming.
Retailers were cited as an impediment to making locally grown products available in the local grocery stores.
Producers have to be able to supply product to all stores in order to secure orders. It would be beneficial if
producers had the ability to supply one or two stores with small quantities. Many participants expressed the
desire to purchase locally grown foods but stated that with the exception of the local farmers market they did
not have access to these products.
Focus Group participants urged the development of active living infrastructure in CBRM including bike lanes
in local communities and along the Cabot Trail, and development of hiking and canoeing opportunities across
the island. Participants strongly recommended incorporation of Active Transportation facilities when planning
the construction and improvement of roads, citing Route 4 as a recent example where Active Transportation
was not considered when improvements were recently made.
Several attendees raised the need to ensure access to the Bras D’Or Lakes for recreational activities. As
waterfrontage has been sold and developed on the lakes, access to historically used beaches has been
gradually diminished. It was also noted that recreational fishing seems to be in decline, which most
participants attributed to generational differences.
Participants also explored the subject of forestry. One Focus Group participant who works in the sector
expressed personal dislike for the use of mechanical harvesters as they replace human workers and remove
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money from the local economy. He noted that his crew harvests manually but they are all over the age of 50.
Age is an issue facing this industry. Without younger people available or interested in pursuing forestry as a
career, the industry will go into further decline. Maintaining markets for logs has become an issue.
The topic of out migration was raised for discussion. Participants noted that the strong sense of community,
tight social network, and distinctive culture of Cape Breton are attractive to newcomers to the region as well
as to Cape Bretoners returning to the area. Participants discussed the importance of maintaining the Cape
Breton lifestyle. One individual in attendance who recently moved to CBRM noted that there is a lack of
advertising of social events and of the Farmers Market. There was some discussion regarding adding “big
city” elements, while still maintaining a small town feel.
When participants were asked to consider CBRM over the next 50 years, some of the topics discussed
included concern over rising sea levels, the need for CBRM residents and municipal politicians to be
challenged to think long term, future uses for DEVCO lands, guidelines for development around the Bras d’Or
Lakes, exploring energy self-sufficiency for the island, and pursuing oil exploration to bring employment to
Cape Breton. Concern was expressed with respect to the ability of CBRM residents to participate effectively in
provincial level decision-making. Some felt that local autonomy is required to give the community control of its
future.
2.3.3.2 Rural Focus Group II
The second Rural Focus Group began with a discussion around the topic of youth leaving Cape Breton.
Three members of the Junior Chamber of Commerce attended this session and offered many suggestions for
creating a community in which youth would be attracted to stay or move into the area. Their suggestions
included, displaying the work of local artisans in public spaces (i.e., sculptures, murals), beautification of
community spaces, creating playgrounds, open spaces, dog parks, promoting adventure tourism, and
identifying places to surf and kayak.
They recommended emphasizing environmentally sustainable yet interesting activities. Ideas such as zip
lining and zorbing were put forward for discussion. They also noted that Cape Breton has excellent locations
and easy access for astronomy enthusiasts.
A need for modern, rental units in the downtown area, where youth want to live, was identified. Opportunities
for entrepreneurship and mentorship from existing business owners were identified as important issues to
young adults.
Some attendees suggested that CBRM citizens need to stop dwelling on the negative aspects of the island’s
circumstances and focus positive efforts to build a vibrant and economically prosperous community. It was
also mentioned that perhaps there should be less focus on trying to build big business in a small community.
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2.3.4 ICSP Web Survey
Stantec posted a Web survey on January 4, 2010. The survey was made accessible through a prominent link
on the ICSP Blog site, which was, in turn, accessible from the Home Page of the CBRM site, as explained in
Subsection 2.4.2
, below. Hard copies of the survey were also made available at public consultation sessions,
at the ICSP kiosk, and, from mid-January onward, at the CBRM library. Respondents who filled out their
survey manually were invited to mail their completed questionnaire to Stantec in Sydney or drop it off at
Stantec’s George Street office. Some were also returned to Stantec staff at public events.
The survey was distributed to the public and provided on the CBRM ICSP Web site from January 4 to
February 8, 2010. In total, the survey obtained 159 usable responses, 90 per cent of which were from
residents of CBRM. Among employed respondents, 86 per cent stated they work in CBRM. More than 71 per
cent of respondents who live in CBRM indicated they have lived in their current neighbourhoods for more than
5 years with nearly 20 per cent having lived in their current location for 21 years or more.
The total return provides a confidence interval of 7.8 per cent 19 times in 20. As not all respondents
answered every question, however, confidence intervals for some questions may be greater than this interval
(i.e., less reliable).
Respondents were clearly interested in sustainability. The most frequently cited words or phrases that they
offered when considering “sustainability” were the “present and future” (79 per cent), the “economy” (72 per
cent), “environmental protection” (68 per cent), and “preserving opportunities for youth” (64 per cent).
Thoughts on sustainability were expressed mainly in terms of something positive – a shift towards a better
environment, stronger economy, and/or better society. A small minority of respondents associated the term
“sustainability” with a shift in a negative direction such as, “changes to the way I live that are hard to make” (9
per cent), “conditions that make it more difficult for business” (4 per cent), and “a less comfortable life” (2 per
cent).
The leading indicators of sustainability in CBRM, in the opinion of respondents, were:
More young people in CBRM;
More community participation;
More services available locally;
More small and medium sized enterprises (SMEs) based in CBRM;
More cultural opportunities;
Cleaner rivers and streams; and
More employment.
Table 2.3
provides a summary of priorities related to the five pillars of sustainability guiding this study.
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Table 2.3 Priorities for Sustainability, CBRM ICSP Web Survey, 2010
Cultural Sustainability
The main priorities for are:
Supporting community initiatives
Encouraging community/cultural festivals and events
Promotion and preservation of arts and culture
Encouraging participation in local government
Cataloging, preserving and protecting heritage buildings
Economic Sustainability
The main priorities for are:
Developing the Port
Diversifying the CBRM economy
Supporting small business start-ups or growth / Investing in local businesses
Improving existing infrastructure (roads, water and wastewater)
Investing in “green” businesses
Developing energy and alternative energy opportunities
Environmental Sustainability
The main priorities for are:
Developing alternative sources of energy
Effective municipal planning policies
Encouraging more "green" buildings (e.g., use solar power, reduce water use, energy efficiency)
Protecting our drinking water / Protecting our lakes and rivers
Adapting to climate change
Social Sustainability
The main priorities for are:
Creating local employment opportunities for the graduates of our schools and university
Helping to develop options for young people to work and live in CBRM
Attracting and retaining immigrants to Cape Breton
Attracting and retaining former residents of Cape Breton
Supporting the education system
Investing in recreation and active living (trails, parks)
Promoting healthy lifestyles/health awareness
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Table 2.3 Priorities for Sustainability, CBRM ICSP Web Survey, 2010
Governance Sustainability
The main priority areas for included:
CBRM creating an environment for economic development
Change CBRM Council by REDUCING the number of Councillors
CBRM Mayor and Council taking a more positive outlook on the CBRM economy
More transparent local government decision-making
CBRM forming stronger partnerships with other levels of government
Communicating CBRM initiatives to the public
CBRM supporting development rather than acting as a developer
Appendix A
The summary provided in presents quantitative results for all questions in the order that they
were posed in the survey questionnaire along with question text and instructions, as well as bar charts and
pie charts illustrating results. We have also included all comments received. Comments are provided verbatim
with the exception of corrections for spelling, and obvious typographical and grammatical errors.
2.3.5 Draft ICSP Consultation
Stantec staff reviewed the document, CBRM’s Integrated Community Sustainability Plan: A Discussion Paper,
early in the conduct of this ICSP. The report, which is the result of initial work by CBRM staff to develop an
ICSP, includes a summary of consultation input received pursuant to solicitation by the Municipality in 2009.
Stantec staff have reviewed the full written submissions themselves and the ideas put forward were taken into
consideration with other input in developing ICSP documents, including this plan.
2.3.6 ICSP Blog Site
At the outset of this assignment Stantec developed a Blog site (http:\\cbrmicsp.wordpress.com) to present the
ICSP process. Stantec team members posted articles on the site announcing and describing events as they
occurred. Project outputs (i.e., reports and PowerPoint presentations) were also posted as the ICSP
progressed. The site also incorporated a schedule of tasks taken from our proposal that was regularly
updated as events were scheduled and completed. It was been linked to the CBRM Web site through an icon
on the CBRM Home Page (www.cbrm.ca).
2.4 Public Consultation
Public consultation processes differ from the research tasks just described primarily in that they solicited and
were open to participation by all interested members of the public. All such sessions were advertised in
advance in the Cape Breton Post. Open consultation was an ongoing component of our Consultation Plan,
particularly through the provision of the ICSP Blog, which was initiated at the outset of the project and was
Table 2.1
used throughout to publicize and report consultation events. As , above, indicates, consultation
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events were focused during the three days from January 11 through 13. The ICSP Symposium and Visioning
Section 4,
Session, the following week, were also open to the public and are outlined in below.
The site worked effectively to inform interested members of the community. It also proved to be an effective
project management tool though which CBRM representatives and citizens were able to monitor progress on
project tasks as work on the plan progressed. As it was publicized through newspaper advertising of
consultation events and by the consultants at those events, public use of the blog increased to a peak in mid-
January when it was consulted by many individuals seeking information on ICSP consultation events that took
Figure 2.1
place in the second and third weeks of that month (). The most active days were Monday, January
18, following the end of the ICSP Outreach process (86 views); Thursday, January 21, the day of the ICSP
Symposium and Visioning Session (78 views); and Wednesday January 27 (111 views). Overall in January,
the site was visited 1,179 times. Activity subsided in February as consultation closed. Over the month, the site
6
Table 2.4
attracted 663 additional views. As of Sunday, February 28, the site was viewed 2,059 times (). At
the writing of this final draft, total views of the blog site stood at 2,501.
6
Statistics are compiled automatically by Wordpress through which the site is administered. Accesses from the
computer of Stantec’s site administrator are not counted; however, views by other CBRM and Stantec
employees are recorded in the statistics shown.
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Table 2.4 Daily Views, CBRM ICSP Blog, December 4, 2009, to February 28, 2010
Daily
Mon Tue Wed Thu FriSatSunTotal Change
Average
DecemberDecember 4-20
Views 148 9
21 22 23 24 25 26 27
December
Views 0 3 15 11 0 4 1 34 5 -44.4%
28 29 30 31 1 2 3
December
Views 0 5 17 0 15 2 5 44 6 29.4%
January4 5 6 7 8 9 10
Views 20 19 7 40 35 18 32 171 24 288.6%
January11 12 13 14 15 16 17
Views 36 47 56 50 51 8 21 282 40 57.30%
18 19 20 21 22 23 24 0
January
Views 86 25 59 78 62 18 59 387 55 43.90%
25 26 27 28 29 30 31 0
January
Views 64 39 111 25 52 19 20 330 47 -14.70%
1 2 3 4 5 6 7 0
February
Views 46 33 20 62 24 29 89 303 43 -8.10%
February8 9 10 11 12 13 14 0
Views 60 11 20 5 28 7 10 141 20 -53.50%
February15 16 17 18 19 20 21 0
Views 35 43 17 4 4 13 7 123 18 -12.80%
February22 23 24 25 26 27 28 0
Views 27 10 12 14 21 4 9 96 27 -21.95%
TOTALS 374 235 3342892921222542,059
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Figure 2.1 ICSP Blog Statistics, December 28, 2009, to February 28, 2010
All postings on the site allowed comments to be entered and members of the public were encouraged to
contribute their thoughts as much as possible. Ultimately, 18 comments were posted, 14 by the public with
four responses from Stantec’s moderator. All project outputs were posted as they were reviewed by the ICSP
Committee and Council.
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2.4.1 Mall Kiosk
From Tuesday, January 12, through Thursday, January 14, Stantec set up a kiosk in the Mayflower Mall in
Sydney. The kiosk consisted of two tables on which Stantec provided background information on the
company and its commitment to sustainability, mapping of the region on which members of the public were
Figure 2.2
invited to mark their ideas and concerns, and hard copies of the ICSP Survey (). We also set up
four panels explaining ICSPs, summarizing the ICSP process, and encouraging the public to get involved
Figure 2.3
(). The availability of the kiosk was advertised in the Cape Breton Post and on our Blog site.
Figure 2.2 ICSP Kiosk
Traffic in the mall varied from day-to-day with Wednesday being noticeably less busy than the other two days.
Stantec staff spoke to individuals who stopped to pick up questionnaires, ask about the ICSP process, and/or
express opinions concerning ICSP-related issues. We spoke to more than 60 people in total, although many
more slowed down to read the panels and learn about ICSPs. The kiosk was arranged to allow visitors to fill
out the questionnaire on site with the assistance of Stantec staff. We handed out roughly 20 questionnaires.
The kiosk complemented the conduct of the Town Hall Meetings and Rural Focus Groups, which were
scheduled in evening periods on the same days. The kiosk was intended to advertise these components of
the process to mall visitors. The kiosk was moved to the Town Hall meetings on the two evenings that they
were scheduled, and was used at the Symposium and Visioning Session the following week.
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Figure 2.3 ICSP Kiosk Panels
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2.4.2 Town Hall Meetings
Town Hall meetings were held on the Northside at Memorial High School in Sydney Mines and in the eastern
portion of the urban core at the Glace Bay Fire Hall. The first of these sessions at Memorial High School
attracted approximately 20 community members and was conducted as a small workshop. The second
session only attracted three citizens, who engaged in a small group discussion with members of the Stantec
team and CBRM staff in attendance. Both Town Hall sessions opened with a brief presentation providing
background information on the ICSP process, the CBRM project plan, and Stantec’s community consultation
schedule. Although attendance was disappointing in both cases and particularly in Glace Bay, productive
discussions nevertheless took place.
2.4.2.1 Northside Town Hall
The Town Hall on the Northside was held on Tuesday, January 12. After their opening presentation, the
Stantec team answered questions regarding the ICSP process. Several individuals expressed dismay that
Council rejected a draft ICSP prepared by its own staff necessitating the hiring of a consultant. municipal staff
in attendance assisted Stantec in responding to this concern noting that the primary issue was the
recommendation of the ICSP Discussion Paper concerning governance.
The participants were then encouraged to form four small working groups with approximately five in each
group so as to discuss the future of CBRM in relation to the economic, environmental, social, and cultural
pillars of sustainability. In light of questions raised at the beginning of the session, the groups were
encouraged to discuss the issue of governance as well. Each group was provided with a set of 1:40,000 maps
to facilitate their discussion. While some groups chose to record their discussion in note format, other groups
recorded their discussion on the mapping provided.
Several participants discussed Sydney Harbour. Participants strongly believe that dredging the harbour and
developing the port will provide many economic opportunities for CBRM and generate the need for skilled
labour. Participants also discussed the historical development of the Northside Industrial Park and the strong
presence that Magna held in the park for approximately 25 years. Several noted attempts to build industrial
presence in the park that have unfortunately fallen short of long term success. Keata Pharmaceuticals and
Cape Breton Castings Inc. were noted as specific examples. The industrial park is seen as a strength and
opportunity for a resurgence of industrial development within CBRM.
Some participants noted the rich cultural heritage across the Island, not just in CBRM. One participant
suggested that participation in Celtic Colours increases year over year and is a great example of the
successful promotion of Cape Breton culture. Several participants added that responsible agencies need to
increase the promotion of Cape Breton history and culture. They suggested that CBRM should focus on
attractions and attributes that are unique to Cape Breton and not seen in every other city.
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Some groups discussed the need to build on the tourism opportunities created by the cruise ships that dock in
Sydney. Suggestions included improved signage, more waterfront attractions, enhanced promotion of tourist
attractions in Sydney and across the Island, opportunities to rent canoes and kayaks, a dinner/cruise boat in
the Bras D’Or Lakes, a floating restaurant in the Harbour, and improved restaurants. One participant noted
that the many tourism strengths of CBRM and the Island suggesting that tourism should be viewed and
promoted as a product.
Several participants raised recreation and lifestyle issues. Many would like to see an improvement in the
quality of existing outdoor experiences. Many also noted that they would like to have more developed green
space (i.e., parkland), as well as cleaner beaches with the frequent closures of Indian Beach being
specifically referenced. One participant expressed concern that limited recreational activities and spaces for
young families forced repetition of the same activities week after week. The need to develop more walking
and bicycle trails was also emphasized. The Ferris Hill walking trail and the trail on Old Branch Road in North
Sydney were specifically mentioned.
Lifestyle was emphasized as a strength of CBRM. It is clear from the discussions that members of the
community are very proud of the strong sense of family values, pace of life, and natural beauty that CBRM
has to offer. Participants felt that lifestyle should be used as a recruiting tool to encourage individuals and
businesses to the area.
Another participant noted that members of the community have great ideas about ways in which to develop
CBRM, but may feel that they do not have a mechanism by which to share them. One participant
recommended that CBRM implement a “suggestion box,” an initiative that might be addressed through
opening of the CBRM Web site to comments as on the ICSP Blog site. It was also noted that CBRM should
do more outreach within the community to solicit input from its members on various issues. One participant
expressed frustration that the same community members continually offered their time and suggestions. It
was suggested that CBRM create an internal and external communications department to address this issue.
A couple of participants noted that CBRM should benchmark other communities that have been in a similar
situation as CBRM and learn from their successes.
2.4.2.2 Eastern Town Hall
The Town Hall in Glace Bay was held on Thursday, January 14. Participants discussed the increasing
number of senior citizens in CBRM and the importance of ensuring quality of life. They noted that key issues
for the elderly include transportation, health, safety, social opportunities, and housing. One participant
presented the concept of developing “Age Friendly CBRM.” This is an extension of the World Health
Organizations Age Friendly Environments Program, which is intended to address the environmental and
social factors that contribute to active and healthy ageing in societies.
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It was suggested by those in attendance that the transit system should be improved to provide more routes,
better accessibility for those who require it and improved scheduling. It was noted that not many residents use
the transit system as a means to get to work; however, substantial numbers of university students rely on
buses. One participant commented that local service clubs often fill the gap providing transportation to
individuals in need, notwithstanding the availability of Handi-trans. Participants were aware of the transit study
currently being conducted for CBRM by iTrans Consulting.
Participants discussed the need for improved infrastructure including sewers, water lines, sidewalks, and
roads. The need to develop a single, comprehensive plan instead of a patchwork approach to infrastructure
development was emphasized. Discussion also addressed the maintenance of public facilities. While many
good facilities (i.e., arenas, pools, soccer fields) are built, it is frequently difficult to find the funds to maintain
the infrastructure after the initial funding is spent.
The group then turned their attention to social issues facing CBRM. They discussed the development of a
poverty coalition, the lack of suitable and affordable public housing, long waiting lists, and the limited number
of apartments available for rent. Most participants agreed that abandoned housing in CBRM should be
restored and made available to assist with the shortage of affordable housing.
Participants also advanced the frequently heard argument that some Provincial government functions
currently centralized in Halifax should be relocated to CBRM to provide needed employment attractive to
younger workers, as well as to improve communication and enhance the local sense of commitment to the
province. Group members also recognized that improvement is needed within CBRM and that the influence of
parochialism on Council debate and priority setting was a particularly significant impediment to progress.
Other issues discussed included the high cost of air travel in and out of Cape Breton, the need to make
further investment in the Cabot Trail, the benefits that Cape Breton University brings to the community, the
need for improved recreational facilities, successes achieved with sporting and cultural events, the strength of
CBRM’s volunteers, and the opportunities to capitalize on geothermal potential in CBRM.
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3.0 SUSTAINABLE PLANNING ISSUES AND TOPICS
3.1 Demography
The progress of the coal and steel industries in Cape Breton is easily discerned in the demographic history of
the area. Through its early history, Cape Breton County and the urban communities that now form CBRM,
grew steadily, keeping with or in many instances exceeding Halifax and certainly exceeding the remainder of
the province where population was at best static. From 1941, however, when the population of what is now
CBRM was roughly 90 per cent of what is now HRM, CBRM began to diverge not only growing more slowly
than Halifax and the rest of Nova Scotia through the 1950s but declining more rapidly than even most rural
areas of the province as the coal mines and steel plant began to contract in the 1970s, with the ultimate drop
Figure 3.1
coming from 1996 to 2001 when both entered their death throes ().
Figure 3.1 CBRM Population as Percentage of HRM, and Other Nova Scotia, 1871-2006
100.0%
90.0%
80.0%
70.0%
60.0%
50.0%
40.0%
30.0%
20.0%
10.0%
0.0%
18711881189119011911192119311941195119611971198119861991199620012006
% of HRM% of Other NS
Source
: Service Nova Scotia and Municipal Relations
The coal and steel industries are now gone from CBRM and are unlikely to return in their traditional form.
DEVCO and other agencies worked hard to re-orient the Cape Breton economy as coal and steel declined.
DEVCO invested in the development of what is now Cape Breton University. It and other organizations
encouraged the development of tourism, industrial parks for non-coal/steel related manufacturing industries,
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and small businesses and community infrastructure projects that have, to a degree, replaced the many jobs
lost. This has no doubt moderated the decline in local population but the overall downward trend is marked.
Figure 3.2
CBRM now has 25,581 fewer residents than at its peak in 1961, a drop of nearly 20 per cent ().
Figure 3.2 Population, CBRM, HRM, and Other Nova Scotia, 1871-2006
450,000
407,410408,045
401,370
400,665
398,306
389,253
400,000
372,858
359,183
357,520
342,966
341,419
350,000
330,846
322,671
306,418
305,149
295,114
292,184
289,997
288,155288,115
287,307
300,000
280,061
266,208
255,354
250,000
CBRM
225,714
HRM
Other NS
200,000
162,189
150,000
122,656
100,204
97,228
131,507
129,075
127,035
123,625
120,306120,098
100,000
117,849
80,257
74,662110,703
109,330
71,358
105,928
67,917
56,96392,502
86,319
73,330
50,000
49,166
34,244
31,258
26,454
0
18711881189119011911192119311941195119611971198119861991199620012006
Source
: Service Nova Scotia and Municipal Relations
Local population losses have largely resulted from the out-migration of young adults seeking education,
lifestyle, and employment opportunities in larger centres and stronger industrial labour markets. Halifax,
Toronto, and Alberta, in particular, have drawn away young people. The consequence has been a decline in
the numbers between 15 and 44 years in the region that has significantly outpaced overall population decline.
This issue has been examined in detail by several demographic studies, including two completed for CBRM
by members of the Stantec project team preparing this ICSP. This past work need not be completely
recapitulated here. The key observations are that the region’s population losses appear to have peaked
during the 1996 to 2001 period with the closure of the coal mines and steel plant (-7.6 per cent). Although the
percentage loss in the most recent Census period from 2001 to 2006 was substantially less, it was still
significant (-3.5 per cent). Because such a large proportion of the region’s younger population has left and
because young adults will continue to leave without stronger local economic growth, the region’s population is
likely to continue to decline owing not only to this net out-migration but also to declining natural increase
Figure
attributable to the reducing proportion of the population in child-bearing age cohorts, as portrayed in
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3.3
, which incorporates recent projections by Stantec staff. As remarkable as the ultimate decline in the
number of children may appear, it is worth noting that our modelling actually predicts a slight flattening of the
downward trend recorded by the Census from 1991 to 2006.
Figure 3.3 Pecentage of Population in Child-bearing Years and Number of Children,
CBRM, 1991-2026
60.0%30,000
51.9%
49.7%
25,590
50.0%25,000
44.8%
23,655
41.4%
38.3%
40.0%20,000
19,695
35.5%
32.4%
30.6%
16,655
30.0%15,000
13,680
11,705
20.0%10,04010,000
8,695
10.0%5,000
0.0%-
19911996200120062011201620212026
% of Population 15-44 yearsNumber 0-14 years
Source
: Census of Canada, Stantec calculations
Ultimately, if trends continue as they have even in the more favourable 2001 to 2006 period, the size and age
Figure 3.4
structure of CBRM’s population can be expected to evolve as portrayed in . The projections
suggest a further decline in population of 21.2 per cent over 20 years. The proportion of children (0-14 years)
will fall by roughly one-third relative to its current level (from 15.7 to 10.4 per cent) while the share of
population represented by seniors will precisely double (from 17.8 to 35.6 per cent).
3.2 Land Use
On its amalgamation in 1995 the area that is now CBRM comprised one city and six towns, all of which were
encompassed by Cape Breton County. The Towns of Sydney Mines, North Sydney, Dominion, New
Waterford, and Glace Bay clustered around the City of Sydney, which was the third largest urban centre in the
province following Halifax and Dartmouth. The Town of Louisbourg sat next to the restored fortress by the
Atlantic coast at the eastern edge of the county. The area also contained two First Nations Reserves,
Membertou, at the edge of Sydney, and Eskasoni, inland on the western side of East Bay on Big Bras d’Or
Lake. Scattered through the county were and continue to be many small communities of distinctive character
many in beautiful settings on the ocean, overlooking the Bras d’Or Lakes, and along the Mira River (see
Figures 3.5a 3.5b, 3.6
andand).
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Figure 3.4 Population by Age Group, Cape Breton CA, 1991-2026
140,000
120,00016,495
16,925
17,475
18,820
100,000
20,285
23,430
80,000
26,860
67,960
68,170
29,660
63,930
62,910
60,000
60,100
54,840
48,205
40,000
41,400
18,275
17,090
14,530
13,845
20,000
12,250
9,950
8,005
25,590
6,900
23,655
19,695
16,655
13,680
11,705
10,040
8,695
-
19911996200120062011201620212026
0-1415-2425-6465+
Source
: Census of Canada, projections by EDM Environmental Design and Management
Each of these communities has clear historical roots. The oldest, Louisbourg, developed around the fishing
industry, which augmented its attraction to the French and has maintained the community long after the site
ceased to be a strategic military location. The restoration of Fortress Louisbourg since the 1960s and the
tourism attracted to the area by the historic site have provided a second source of employment and income as
th
Subsection 1.3
the fishery has struggled. Sydney, as noted in , was founded in the late 18 century as an
administrative centre but grew as a coal mining site and then as the site of the steel plant. As the largest
community, it also became the retail and business hub of the region and its de facto downtown.
Table 3.1
The remaining towns around Sydney also were and continue to be substantial communities (). At
the time of amalgamation, for example, Glace Bay was the largest town in Nova Scotia, and New Waterford,
North Sydney, and Sydney Mines were all within the top ten of the 39 towns that then existed in the province.
Like the City of Sydney itself, each town corresponded to a specific mine head or group of mine heads. Glace
Bay, for example, was formed from several communities that developed around mines on the edge of the bay
and eventually blended into a single community. Sydney Mines, New Waterford, and Dominion were
essentially company towns established in relation to the operations of the General Mining Association in the
case of Sydney Mines and the Dominion Coal Company in the case of New Waterford and Dominion. Only
North Sydney is distinct in its economic roots as it grew as a shipbuilding centre in the nineteenth century
before becoming the Nova Scotia terminus of the Newfoundland ferry in the twentieth, a role that it continues
to fulfill.
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Table 3.1 Population, CBRM Municipal Units
The two aboriginal reserves, Membertou and
Before Amalgamation, 1986-1991
Eskasoni, are also important components of
the mosaic within the region, although they
%
Municipal Unit Inc.1986 1991
are administratively distinct from CBRM. The
Change
reserves are also distinct from the
City of Sydney 1904 28,115 26,552 -5.6%
perspective that their populations have
Town of Dominion 1906 2,754 2,517 -8.6%
continued to grow as nearly all other Town of Glace Bay 1901 20,467 19,601 -4.2%
Town of Louisbourg 1901 1,355 1,261 -6.9%
communities in the region have lost
Town of New Waterford 1913 8,326 7,695 -7.6%
population. Membertou is located on the
Town of North Sydney 1885 7,472 7,260 -2.8%
edge of the former City of Sydney. At one
Town of Sydney Mines 1889 8,063 7,551 -6.3%
time the community was located on Kings
County of Cape Breton N/A 47,073 47,761 1.5%
Road by Sydney Harbour but it was relocated
TOTALS125,611 122,189-2.7%
to its present uphill site in the 1920s.
Eskasoni Reserve N/A 2,206
Eskasoni, on the western shore of Big Bras
Membertou Reserve N/A 489
d’Or Lake, was one of two sites along with
Source
: Nova Scotia Department of Municipal Relations, Annual Report on
Shubenacadie to which Nova Scotia Mi’kmaq
Municipal Statistics, 1988 and 1994
were relocated in the 1940s. Today,
Membertou is developing a substantial business park on the edge of Sydney’s urban core and stands out as a
thriving growing concern. Eskasoni is now the largest aboriginal community in Nova Scotia. It has most of the
facilities of an independent community including its own school system and health care facilities. It is also
developing business enterprises but continues to face many challenges despite its growth.
Unlike many other urban areas where towns and villages on a city’s edge were suburbs of the core urban
area, the communities that formed the core of Industrial Cape Breton, although clustered around the harbour,
were legitimately separate. Each had its own downtown and services, and although Sydney was the pre-
eminent community because of its population, which was only marginally larger than Glace Bay, none of its
neighbours could be regarded as a subordinate element of the city. Geographic barriers have also played a
part, particularly with respect to the north and south sides of Sydney Harbour.
This pattern of development is nonetheless costly and challenging, as it has required the development of
largely separate water and sewer systems for each community, and has fostered individual identities reflected
in community facilities and services oriented to each place. At the same time, CBRM has not by any means
Table 3.1
been immune to sprawl. As indicates, the surrounding county was the only area of CBRM that was
gaining population on the eve of amalgamation. The attraction of inexpensive land in unspoiled areas of the
former county, particularly along the inland waterways, has drawn residents from the urban core and from
around the world to CBRM.
Housing in these outlying areas ranges from rundown to spectacular. The challenges of providing water and
effective wastewater disposal while protecting the local environment are considerable. The recent Bras d’Or
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Cape Breton Regional Municipality Integrated Community Sustainability Plan
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Sustainable Planning issues and topics
Lakes Development Guidelines report referenced above has made a variety of recommendations to reduce
the impact of this type of development that are under consideration by all of the municipal units bordering the
lakes. The mandate of the ICSP also includes the establishment of a development boundary to restrict the
extension of services in the area.
The current evolution of population distribution in CBRM is both encouraging and challenging in these
respects. Population distribution was examined and projected through a study that followed up the projection
Subsection 3.1
work outlined in above. The study projected population for the following sub-areas of CBRM
defined by municipal staff:
Bras d'Or;
Eskasoni;
Greater Glace Bay;
Greater New Waterford;
Greater Sydney;
Mira and East; and
Northside.
Projection of populations based on trends established in the 2001 to 2006 period found evidence of both
continuing sprawl and a tentative move back to the centre of the region. Areas that gained population from
2001 to 2006 were the former City of Sydney and immediately surrounding areas at the centre of the region,
the Bras d’Or sub-area in the southwest corner of the municipality, and the Eskasoni Reserve, which is
Figure 3.7
encompassed by the Bras d’Or area ().
Sydney stabilized during the 2001 to 2006 period apparently because of its draw for seniors attracted by
relatively easy access for services. The Bras d’Or sub-area flanking East Bay has long been renowned for its
natural beauty and appears to be attracting small but nevertheless significant numbers of active seniors in the
55 to 75 age cohorts who are no doubt drawn to the area by the opportunity to enjoy relatively inexpensive life
in a country setting that still provides access to a significant urban centre and its related services. Eskasoni,
although it is within the Bras d’Or sub-area, is growing for entirely different reasons. It is subject to the
particular dynamics of Canada’s aboriginal communities, which are sustaining a significantly higher birth rate
than the balance of Canada. The population of Eskasoni, as a result is much younger than other communities
in CBRM. In the long-run this younger population suggests a much greater potential for growth than any other
sub-area of the region, although the relatively small area and economic limitations of the reserve’s location
Figure 3.7
may eventually restrict expansion (). By contrast, the Sydney area, which is largely attracting older
seniors, seems likely to resume losing population.
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Cape Breton Regional Municipality Integrated Community Sustainability Plan
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3.3 Economy
Without question the foremost issue that has been raised in ICSP Focus Group consultations and interviews
was the state of the CBRM economy and the means by which it can be revitalized. The economy has gone
through a major upheaval and the consequences at times have appeared dire. Most certainly, in fact, the
consequences have been severe and have deeply influenced the character of the community. The following
subsections set out the recent trends that have influenced the local economy, its current conditions, and
perceived opportunities for future development of a sustainable, post-industrial region.
Figure 3.7 Population, CBRM Sub-areas, 1991-2026
50,000
45,840
44,970
45,000
41,23041,275
39,260
40,000
37,140
35,025
32,710
35,000
30,000
26,115
25,105
23,030
25,000
21,680
20,180
24,190
23,805
18,725
20,000
22,190
17,295
21,140
15,740
20,020
18,745
17,460
15,000
16,085
12,005
11,670
10,760
10,545
10,0009,995
9,385
8,795
8,145
7,8507,840
7,320
6,525
6,100
3,790
3,605
5,745
3,420
3,215
2,9855,315
2,735
5,000
4,885
2,415
2,145
0
2,0252,0302,055
1,9351,9352,000
1,8301,850
19911996200120062011201620212026
Bras d'OrEskasoniGreater Glace BayGreater New Waterford
Greater SydneyMira and EastNorthside
Source
: Census of Canada, projections by EDM Environmental Design and Management
3.3.1 Current Trends
Table 3.2
The evolution of CBRM’s economy is apparent in data on employment by industry sector in .
Resource industries and manufacturing, which once dominated the local economy, accounted for less than 15
per cent of all employment according to the 2006 Census. Both the Health Care and Social Assistance (17.8
per cent), and Retail Trade (14.8 per cent) groups account for more workers by themselves. The Mining and
Oil and Gas Extraction sector, which includes coal mining, now accounts for just 0.9 per cent of local
employment, while manufacturing, which includes steel making, accounts for only 4.3 per cent.
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Cape Breton Regional Municipality Integrated Community Sustainability Plan
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Location Quotients (LQ) included in the table directly measure current specialization. These numbers are
calculated by dividing the proportion of CBRM’s workforce in an industry by the proportion in the same
industry nation-wide. If a Location Quotient is greater than one, CBRM has a higher percentage of employees
in that particular industry than Canada and is considered specialized. The figures confirm CBRM’s
specialization in Health Care and Retail Trade, and also in Administrative and Support, Waste Management
and Remediation Services, in Educational Services, and in Public Administration.
Table 3.2 CBRM, Employment by Industry (North American Industry Classification
System 2002), 2006
Age Groups
Median
Employment by Industry Population 15+
%LQ
Age
15-24 25-54 55+
Total - Industries Goods 5,6554704,1451,035 45.3 14.5%0.62
–
Agriculture, Forestry, Fishing and 750 40 535 175 44.8 1.9% 0.64
Hunting
Mining and Oil and Gas Extraction 345 40 240 60 45.6 0.9% 0.63
Utilities 455 15 405 35 49.6 1.2% 1.44
Construction 2,420 255 1,685 475 44.7 6.2% 1.00
Manufacturing 1,680 110 1,280 285 44.9 4.3% 0.36
Total - Industries Services 33,4705,09523,4354,940 43.1 85.5%1.11
–
Wholesale Trade 810 65 640 95 43.7 2.1% 0.47
Retail Trade 5,805 1,575 3,605 625 39.1 14.8% 1.31
Transportation and Warehousing 1,640 90 1,210 335 48.9 4.2% 0.85
Information and Cultural Industries 755 135 525 90 40.4 1.9% 0.78
Finance and Insurance 805 35 680 90 43.3 2.1% 0.49
Real Estate and Rental and Leasing 400 30 260 105 45.8 1.0% 0.56
Professional, Scientific and Technical 2,225 310 1,595 315 40.2 5.7% 0.84
Services
Management of Companies and 25 025 10 36.7 0.1% 0.52
Enterprises
Administrative and Support, Waste 2,715 705 1,715 290 35.8 6.9% 1.67
Management and Remediation
Services
Educational Services 3,410 205 2,540 665 46.6 8.7% 1.26
Health Care and Social Assistance 6,950 265 5,570 1,115 45.5 17.8% 1.71
Arts, Entertainment and Recreation 685 170 415 90 40.4 1.8% 0.88
Accommodation and Food Services 2,680 1,005 1,385 290 32.7 6.8% 1.06
Other Services (except Public 1,910 215 1,330 370 45.6 4.9% 1.00
Administration)
Public Administration 2,660 290 1,920 450 44.9 6.8% 1.15
TOTALS39,1255,57027,5805,975 43.4
Source
: 2006 Census of Canada
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Cape Breton Regional Municipality Integrated Community Sustainability Plan
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The fundamental transformation of the CBRM
Table 3.3 Labour Force and Location
Table 3.3
economy is apparent in , which provides
Quotients, CBRM, 1996-2006
Location Quotients for the Primary (Resource),
Sector
Secondary (Manufacturing), and Tertiary (Service)
Labour Force 47,570 43,565 45,635
sectors. The three groupings are the broadest sectors
Employed 36,780 35,115 38,360
that economists normally employ to break down
employment. Over the three most recent Censuses,
• Participation Rate 49.8% 50.6% 53.3%
CBRM has moved from resources to manufacturing in
• Unemployment Rate 22.7% 19.4% 15.9%
three steps. In 1996, the region was significantly
Primary 1.49 1.07 0.89
specialized in the Primary sector while employment in
Secondary 0.96 0.37 0.36
the Secondary and Tertiary sectors was marginally
Tertiary 0.97 1.09 1.11
below the national norm. By 2001, the proportion of
Source
: Census of Canada, Stantec calculations
employment in the region in resource industries had
moved fairly close to the national average, while employment in the manufacturing sector had dropped
markedly and employment in services had risen marginally above the national standard. In the most recent
Census, resource employment fell below the national average, manufacturing stayed well below the national
norm, and the representation of service employment strengthened further. The economy of CBRM is now
primarily service based and the other two sectors that once dominated local employment appear to be
stabilizing at much lower levels.
Table 3.4 Place of Work, CBRM Residents, 2006
Place of Work CBRM Nova Scotia
Worked at home 1,500 3.9% 13,670 6.5%
Worked outside
120 0.3% 505 0.2%
Canada
No fixed workplace
3,900 10.2% 10,075 4.8%
address
Census Subdivision
(Municipality) of 31,165 81.2% 136,305 65.0%
Residence
Different Census
Subdivision
(Municipality) Within
285 0.7% 34,470 16.4%
Census Division
(County) of
Residence
Different Census
660 1.7% 12,950 6.2%
Division (County)
Worked in a different
730 1.9% 1,635 0.8%
province
Total Employed
38,360 209,600
Labour Force
Source: 2006 Census of Population
Over this period, it is notable that numbers in the regional labour force have fallen then risen above the level
of 1996. This reflects an increase in the local participation rate, which has been accompanied by a
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Cape Breton Regional Municipality Integrated Community Sustainability Plan
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Sustainable Planning issues and topics
considerable fall in the unemployment rate. Despite this obvious progress, the participation rate in 2006 was
still only about 85 per cent of the Nova Scotia rate and unemployment remained at a very high level (6.8
percentage points higher than Nova Scotia as a whole).
An issue that is regularly raised concerning the shift from resource and manufacturing industries in the region
Table 3.4
is the trend to working in other areas of Canada, particularly the Alberta Oil Patch. As , illustrates,
however, the proportion of CBRM workers identifying their primary place of work as out of province is small,
notwithstanding that it is more than twice the provincial norm. It is, however, worth also noting that the
combination of CBRM workers who worked outside of Canada, in a different province, and with no fixed
workplace address totals 12.4 per cent, compared to just 5.8 per cent for Nova Scotia as a whole.
Jobs outside of Cape Breton are normally higher paying and, as such, bring valuable income to the region. In
many cases, they may well allow former miners and mill workers to apply skills while maintaining their homes
and families in CBRM. Many are, however, concerned with the impact of such separations on families and the
lost social contributions of valuable, hard working community members.
3.3.2 Resource Sector
According to the 2006 Census, 2,000 people were employed in the forestry, fishing, mining, and oil and
gas industries in Cape Breton at the time. Community Counts reports that “Agriculture, forestry, fishing, and
hunting” employed 1,250 in 2007 or 2.8 per cent of the CBRM labour force.
3.3.2.1 Agriculture
Cape Breton agriculture, along with agriculture in other areas of Nova Scotia, has faced substantial
challenges over the last decade from factors such as poor weather conditions, the discovery of BSE (Bovine
Spongiform Encephalopathy) in cattle, increased trade challenges/restrictions, rising transportation costs, and
changes in the global food distribution system that have locked many smaller operations out of large-scale
retail distribution. Many farmers have adapted to these pressures by moving along the value chain to deal
more directly with the consumer at the retail level. This has been accomplished through the proliferation of
farmers markets and on-farm retail activities.
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Cape Breton Regional Municipality Integrated Community Sustainability Plan
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Table 3.5 Gross Farm Revenue, Cape
This approach appears well-suited to Cape Breton
Breton, 2001 and 2006
Table 3.5
agriculture, which is generally small-scale ().
According to the 2006 Census of Canada, farms
Gross Farm Revenue 2001 2006
provided 145 jobs in CBRM, with another 65 in “support
Less than $10,000 131 118
activities for agriculture and forestry.” The
$10,000 - $24,999 61 79
accompanying 2006 Census of Agriculture indicates
$25,000 - $49,999 34 28
that 125 of 5,100 Nova Scotia farms are within CBRM
$50,000 - $99,999 14 23
(2.5 per cent). These operations generated $8.26
$100,000 - $249,999 31 24
million in revenue or 1.6 per cent of Nova Scotia’s gross
$250,000 - $499,999 10 15
farm receipts ($509.5 million) in 2006. The farms cover
$500,000 and above 6 4
6,113 hectares or 2.5 per cent of the total area of
TOTAL 287 291
CBRM.
Source
: Census of Agriculture
Nevertheless, the Cape Breton Farmers Market Cooperative in Sydney River, which has been operating for
more than 30 years, attracts 1,500 each Saturday during its peak season. Citizens at consultation sessions
emphasized the benefits valued added farm products, which fit well with this of marketing approach. They
also fit with the marketing of local craft products, which have recently been accommodated in the Crafters
Annex to the market.
3.3.2.2 Fisheries
The fishery was once a leading industry in CBRM and Cape Breton, and an important employer throughout
the island’s coastal communities; however, the downturn in the fish stocks during the 1990s reduced the
industry considerably. Counts based a 20 per cent sample collected by the 2006 Census of population,
however, suggest that the fisheries-related labour force may be closer to 1,400 based on 965 workers
employed in fishing and another 505 engaged in “seafood product preparation and packaging.” It is
furthermore possible that the Census sampling method misses fishers who derive short-term or temporary
employment in the sector. For example, Nova Scotia Fisheries and Aquaculture indicates that there were
1,201 licensed fishers in CBRM in 2007, although some may not be actively “in the labour force.”
The fleet working from CBRM pursues lobster, scallop, and various groundfish species. The inshore lobster
fishery accounts for most fishing employment in this region. Landings have fallen over the past three years
Table 3.6
and have fallen as a percentage of the Cape Breton Island catch ().
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Cape Breton Regional Municipality Integrated Community Sustainability Plan
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Table 3.6 Landings by Species, CBRM and Cape Breton, 2006-2008
Preliminary Preliminary
2006 2007 2006 2007
2008 2008
TotalTotalTotalTotalTotal Total
Weight WeightWeight ValueValueValue
(tonnes) tonnes(tonnes) ($,000) ($,000) ($,000)
()
District 6
Groundfish 430 444 214 $1,322 $1,480 $762
Pelagic and estuarial 94 46 7$47 $39 $4
Mollusc and crustacean 14,319 14,772 6,616 $31,181 $32,604 $22,249
Totals 14,842 15,262 6,836* $32,549 $34,123 $23,015
District 7
Groundfish 3,396 3,804 2,494 $4,044 $3,844 $2,529
Pelagic and estuarial 115 43 38 $150 $194 $110
Mollusc and crustacean 2,970 3,307 5,406 $15,302 $20,233 $28,846
Totals 6,481 7,153 7,939 $19,496 $24,271 $31,485
TOTAL (Districts 6 & 7) 21,32222,41514,775$52,045 $58,394$54,500
Cape Breton Island Totals 27,78929,52623,419$80,213 $92,459$96,940
CBRM as % of Cape Breton 76.7% 75.9% 63.1% 64.9% 63.2% 56.2%
Source
: Canada Department of Fisheries and Oceans
Many in this occupational group are self-employed, and often have licenses for multiple species. Service
Canada Labour Market Information indicates that the chances of qualified skippers and fishers finding
employment are limited in Cape Breton. This is attributed to declining fish quotas. Retirement and succession
planning suggest that that future employment outlook this sector is considered “fair” over the next five years.
Fish processing operations in the municipality include Three Port Fisheries at Alder Point, and S N E Sea
Products Inc. and Louisbourg Seafoods Limited in Louisbourg. Employment in these plants is clearly tied to
fishing employment.
3.3.2.3 Forestry
The forest and wood products industry on Cape Breton Island has changed significantly over the years.
Today the industry is largely comprised of distributed small owner-operated woodlot/sawmills. Products also
include fuel wood. Forestry in CBRM largely involves woodcutting on both private and Crown lands in rural
areas. CBRM product is usually transported to areas outside of CBRM for further processing.
Employment levels in CBRM are modest. According to the 2006 Census, there were 275 people employed in
the forestry and related industries, including 75 in “forestry and logging” another 65 in “support activities for
forestry”; 80 in “wood product manufacturing,” including 35 in sawmills and wood preservation; 40 in other
wood product manufacturing; and 55 in paper manufacturing.
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Cape Breton Regional Municipality Integrated Community Sustainability Plan
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The biggest employer in the island’s forestry sector is NewPage, which reportedly employs more than 500 at
their Port Hawkesbury mill. The mill is estimated to support another 500 to 600 jobs harvesting and
transporting wood. Service Canada labour market information rates the chances for qualified forestry
professionals to find employment in Cape Breton as fair. The workforce is relatively older and employment
opportunities are expected to increase shortly through retirements. Requirements for sustainable forests
practices are also expected to continue to “maintain or create work for forestry professionals.”
3.3.2.4 Mining, Oil and Gas
Employment in the mining, oil, and gas sector in 2006 was approximately 860 in approximately six industrial
7
mineral and four pit and quarry operations across all counties on Cape Breton Island. According to Census
data, the labour force in this industry is closer to 535, which includes 215 working in oil and gas extraction,
100 in mining excluding oil and gas, 195 in support activities for mining and oil and gas extraction, and 30 in
unspecified mining activities, among other sectors, not including transportation or construction related
occupations.
Service Canada Labour Market Information suggests that the chances of mine workers finding employment in
Cape Breton are limited, although operations in gypsum, granite, and marble quarrying offer some
opportunities. Xstrata’s recent decision to proceed with development of underground coal mining at Donkin
should augment these prospects; however, the mechanization of extraction methods will mean less
employment than in past coal mining operations in the region.
3.3.3 Port Development
Subsections 2.3.2 2.3.3
As noted in and summarizing Focus Group input, many citizens hold considerable
hope for the development of the Port of Sydney. It was also the economic opportunity that received the
Appendix A
highest rating in response to Question 7 in our Web Survey (see ). The port had a historical role
shipping the products of Industrial Cape Breton to the world but that has obviously subsided. Commercial
shipping at the port, nevertheless, continues to support 2,125 current direct, indirect, and induced jobs in the
8
region, according to economic impact analysis reported in the recent Port Master Plan. In addition, Sydney
has recently emerged as an important stop for cruise ships, attracting 44 visits carrying an unofficial count of
9
62,340 passengers and 26,160 crew in 2009, according to an end-of-season article in the Cape Breton Post.
10
The economic impact assessment in the Ports Master Plan indicates this activity supports 271 current jobs.
7
Gardner Pinfold, Detailed Sector Profiles of the Cape Breton Economy, September 2008.
8
TEC Inc., et al.,Ports of Sydney Master Plan, November 2007, p. ES-1.
9
Chris Hayes, “Successful cruise ship season, claim port officials: Last visit of season takes place today,” The
Cape Breton Post, October 28, 2010. Cruise ships are also making stops at Louisbourg.
10
TEC Inc., et al.,op cit., p. ES-2.
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Cape Breton Regional Municipality Integrated Community Sustainability Plan
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Some concerns have, however, been expressed to us in interviews that a relatively small proportion of
passengers disembark in Sydney, which would obviously diminish the economic benefit derived.
While cruise ship visits are an important complement to land-based tourist visitation to the region and should
continue to increase, most feel a more significant potential lies in the revival of commercial traffic based on
not only transhipment and containerization but also on opportunities in bulk cargo through the potential of
large commercial contracts (e.g., Nova Scotia Power). Its importance is further enhanced by its potential
contribution to commercial and industrial development within the Port-to-Port Corridor linking the airport with
the waterfront, and support to shipbuilding and ship repair on both sides of the harbour.
Table 3.7 Proposed Improvements, Port of Sydney Master Plan, 2007
Total Estimated
Proposed Facilities Design Capacity Design Vessel
Development Costs
Upgraded terminal: 4-5 million 125,000 DWT bulk
International Coal Pier $52 million (incl. equipment)
tones/yr carrier
Multi-bulk Terminal Option: $35
Upgraded terminal: 400-500,000
million (incl. equipment)
60,000 DWT bulk or
SYSCO/PEVtonnes/yr for break bulk & 4-5
general cargo vessel
Option for 125,000 DWT Bulk
million tones/yr for coal
Carriers: $55 million
Sydport Industrial Park Design capacity of upgraded 35,000 DWT bulk or
$42.5 million
Piers terminal: 400-500,000 tonnes/yr general cargo vessel
New terminal: 750,000 TEUs/yr in
Sydport Greenfield 12,000 TEUs with 16 $302 million (Phase 1 - $163
Phase 1 & 1,500,000 TEUs in
Sitem draught million; Phase 2 - $139 million)
Phase 2
Source
: TEC Inc., et al.,Ports of Sydney Master Plan, 2007
An essential component of commercial development of the harbour is dredging to accommodate
contemporary container ships and larger bulk carriers. The $30 to $35 million project will increase depth in
critical portions of the harbour from approximately 13 to 17 metres, the average draft of these larger vessels.
Table 3.7
summarIzes additional port improvement projects. The Ports Master Plan states that “the channel
deepening, by itself, would allow new container and export coal opportunities providing over 4,000 jobs” and
11
Table 3.7
that all suggested improvements listed in would support 5,750 to 8,800 jobs.
11
TEC Inc., et al.,op cit., p. ES-2.
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Cape Breton Regional Municipality Integrated Community Sustainability Plan
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Table 3.8 Infrastructure Recommendations, CBRM Port to Port Study, 2008
Length/
SiteProposed New Infrastructure
Area
Future road from Reeves Street/Welton Street Intersection through eastern portion of Coke
1,070 m
Ovens to SPAR Road (including the provision of services)
Future road from Beech Street/Vulcan Street intersection north through western portion of Coke
920 m
Ovens to SPAR Road/Lingan intersection
Additional remediation through Coke Ovens to allow for commercial/light industrial uses 50 ac
Additional remediation through Coke Ovens/Domtar Site along Ferry Street to allow for
4 ac
commercial uses
Trails through Coke Ovens 1,800 m
Trails along new Tar Ponds north/south channel 4,150 m
Trail from Inglis Street to new Tar Ponds Channel 440 m
Additional remediation to allow for Commemoration Arch/Gateway at Ferry Street 2 ac
Coke Ovens Brook Connector Trail from Ferry Street to Inglis Street 600 m
Trail from Whitney Pier to coffer dam 1,200 m
Relocation of rail shunting and servicing yard from downtown lands to area along existing rail
5,800 m
tracks on SYSCO lands. New tracks for shunting and transfers only.
New berm/landform along Tar Ponds edge (using leftover slag material)
Redesign of Route 4/Highway 125 intersection
Moving of Victoria Road to at-grade level
New at-grade intersection between SPAR Road/Ferry Steet and Victoria Road
Breton Electric Railway Trail 8,000 m
Connection from Reeves Street extension north to Lingan Road 1,900 m
Connection from SPAR Road to Lingan Road 4,600 m
Connection from Lingan Road to airport 6,200 m
Connect Gardiner Road with new bypass 1,800 m
Trail network north of Route 4 16,000 m
Source
: CBCL Limited, Port to Port Corridor Study, Volume 1, 2008
The implications of port development, furthermore, are not confined to the waterfront. The Port to Port
Corridor from the harbour’s edge to Sydney Airport was the subject of a study conducted by CBCL Ltd. in
2007 and 2008. The study developed a land use plan for the area stretching from the Harbour across the
reclaimed Coke Ovens and Tar Ponds lands to the Airport in Reserve Mines. Most certainly the former
industrial lands present a unique opportunity positioned as they are in the centre of Sydney, flanked by the
historic North End and the equally historic Whitney Pier community. The Port to Port Plan calls for the
integration of the Coke Ovens/Tar Ponds site into the community through the extension of existing streets
across the property, and the development of trails networks to meet recreational and Active Transportation
needs. It also advocates the allocation of lands for industrial and additional residential development, as well
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Cape Breton Regional Municipality Integrated Community Sustainability Plan
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Sustainable Planning issues and topics
12
The study document contains recommendations
as the development of “a museum or major civic facility.”
Table 3.8
summarized in , which are worthy of consideration in the context of this plan; however, the
document has not been accepted by CBRM Council. CBRM continues to work closely with Nova Scotia Lands
and the Sydney Tar Ponds Agency to ensure that the cleanup of the Tar Ponds and development of the
Harbourside Commercial Park proceed in a manner consistent with the recommendations of the MPS and the
Port to Port Corridor Study.
3.3.4 First Nations
First Nations are a dynamic component of the Cape Breton and CBRM communities. According to the 2006
Census of Canada, about 4.7 percent of Cape Bretoners identify themselves as Aboriginal (compared to 3.8
per cent of the national population and 2.7 per cent of Nova Scotians), Aboriginal birth rates, furthermore, run
at about 1.5 times the rates for the balance of Canadians stimulating considerable growth. As population in
nearly all areas of Cape Breton has steadily fallen, the population on reserves has grown markedly, with
Table 3.9
notable gains on the Esakasoni and Membertou Reserves within CBRM ().
Table 3.9 Aboriginal Identity and Reserve Population, Cape Breton, 1991-2006
Reserves19911996% Change2001% Change2006% Change
CBRM
Aboriginal
Identity
Population 3,630 3,980 9.6% 4,670 17.3%
Eskasoni 2,206 2,504 13.5% 2,741 9.5% 2,952 7.7%
Membertou 489 612 25.2% 621 1.5% 726 16.9%
Other Cape Breton
Reserves 1,086 1,372 26.3% 1,498 9.2% 1,475 -1.5%
All
Reserves 3,781 4,488 18.7% 4,860 8.3% 5,153 6.0%
Source
: Census of Canada
Not only has the growth of aboriginal groups outstripped the balance of Cape Breton’s population, local
aboriginal communities have strongly pursued economic growth. In 2005, the five First Nation Communities of
Cape Breton (the Unama’ki Chiefs) signed a protocol agreement with the Federal and Provincial governments
aimed at identifying how Cape Breton’s aboriginal communities could participate in the $400 million Sydney
Tar Ponds Cleanup project.
Following the development of a Unama’ki, Aboriginal Procurement Strategy, and creation of the Unama’ki
Economic Benefits Office and the Unama’ki Economic Benefits Steering Committee, the group was able to
12
CBCL Limited, Port to Port Corridor Study, Volume 1 Final Report – Envisioning the Future, March 2008, pp. 39-
42. See also Volume 2 Final Report -- Setting the Stage for Change, March 2008, for background material and
data.
47
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secure Nova Scotia’s first Aboriginal set-aside. A contract valued at $5 million to clean up the Cooling Pond,
which was completed in 2008. Negotiations for future Aboriginal set-asides continue and in 2008 a Unama’ki
Procurement Strategy was put in place with Eskasoni. This covers over $19 million in Aboriginal set-asides
and is expected to see further participation of Unama’ki communities in the Sydney Tar Ponds Cleanup
project.
Since then, the Unama’ki Economic Benefits Office has been actively pursuing economic development for
First Nations in CBRM and all of Cape Breton. This includes the Aboriginal Skills Employment Partnership
(ASEP) project, announced in 2008. The program is designed to help with training, training support, job
identification, job-coaching, and wage subsidies. Unama’ki Communities have also formed the Unama’ki
Chamber of Commerce, an organization dedicated to promoting and supporting issues and concerns of
Aboriginal businesses.
The Unama’ki Economic Benefits Office continues to maximize the returns flowing from the Tar Ponds
Cleanup project, while also focusing on several other opportunities that it considers important to the economic
development of its member communities. Opportunity areas include energy and environmental sustainability,
engaging aboriginals to participate in sciences partnerships with Cape Breton University, and opportunities in
coal mining under costal Cape Breton, among other opportunities.
The energy of the local aboriginal community is especially evident on the Membertou Reserve on the edge of
Sydney. The community has expanded significantly over the past decade, building a successful casino and
pursuing a variety of other projects in the Membertou Business Park. Membertou now has a trade and
convention centre that was used for the ICSP Symposium and Visioning Session, and is currently building a
33,000-square foot business centre offering leased space for professional firms and a business incubation
component. Future plans include the construction of a two-pad arena and a 150-room hotel.
The initiative of First Nations communities has stimulated the economy of CBRM. Cooperation between
CBRM and the Unama’ki communities can support and advance the objectives of this ICSP. The Unama’ki
communities have pursued goals strategically and have been cited as a role model for the Municipality. Open
communication holds the potential of considerable benefits for both CBRM and its two First Nations
communities. This means more than achieving a level of mutual awareness of each other’s activities and
initiatives; it means working together toward mutual goals and shared benefits.
3.3.5 Development Opportunities
Notwithstanding the issues confronting the economy of CBRM as it continues to evolve in a post-industrial
environment, many opportunities are clearly available to provide new income and employment and, hopefully,
to retain and restore population in the community. Many opportunities referenced by participants in the
Economic Focus Group and in other Focus Group sessions, however, have been elaborated through
investigation of study reports and other secondary sources as well as in-person interviews being conducted
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by Stantec team members. Among the leading opportunities identified in addition to port-related and First
Nations potentials outlined in the preceding subsection are the following:
Tourism Industry – Cape Breton offers a wide range of tourism products combining rich culture and
history with varied natural beauty. Enterprise Cape Breton Corporation has not however provided
significant support to tourism for seven years, with the exception of support for special events through
their Festival and Events Initiative. ECBC appears to be renewing its interest in tourism but, the primary
force in the sector is currently Destination Cape Breton, which has been formed to coordinate tourism
marketing across the island. All Cape Breton municipal units are working to establish a levy (a matter that
now needs to be supported in the Nova Scotia Legislature) to support tourism marketing across Cape
Breton. Destination Cape Breton provides a single industry group with an island-wide mandate and all
encompassing membership to implement this goal.
The region offers the rugged Atlantic coastline, a boater’s paradise on the Bras d'Or Lakes, and the world
famous Highlands, both within and beyond Cape Breton Highlands National Park. Economic development
agencies on the island have long regarded tourism investment as key to the economic future and long-run
13
sustainability of CBRM. Cape Breton has won a number of international accolades in recent years;
however, many feel the secret of the island is too well kept. Destination Cape Breton aims to raise the
profile of the region and turn this recognition into market success. Target markets include the motorcycle
and cycling markets, and European eco-tourism/adventure tourists.
Xstrata (Donkin) –Xstrata Coal Canada and Erdene Gold operating under the name Xstrata Coal Donkin
Management have recently announced their intention to reactivate Donkin mine east of Glace Bay.
Revival of the mine in Donkin, which was originally tunneled by DEVCO in the late 1970’s but was shut
14
down in the late 1980s, could generate up to 300 jobs in “high-tech” mining. It could also provide an
important bulk cargo for shipment through the Port of Sydney, although current plans call for coal to be
barged directly from Donkin to post-Panamax vessels located offshore.
As in other cases where energy sources are close to a commercial core, industrial users may be able to
access lower cost energy or benefit from increased price stability. If this occurs, not only will the mining
activity itself provide direct employment, but there may be an opportunity to develop related commercial
and industrial enterprises that can benefit from the availability of economical energy resources,
particularly businesses where energy costs are a significant and/or difficult to control component of
production costs.
Research and Development Synergies – Many residents place considerable hope in the potential
development of Cape Breton University, which although not often selected as the best opportunity for
economic development by respondents to our Web Survey, was the most frequently cited second choice.
The University recently announced a new Industrial Research Chair in Mine Water Remediation and
Management. With this Research Chair comes the potential to develop techniques and technology in
13
Cape Breton, for example, was voted the third best island in the world by readers of Travel & Leisure Magazine,
voted among the top 10 bicycling destinations as reported by Lonely Planet, voted the second best naturally
beautiful place on Earth in National Geographic Travel, and voted among the Best Walks in Canada. The Bras
d’Or Lakes are also recognized in the book by Chris Santella, Fifty Places to Sail Before You Die, Stewart,
Tabori and Chang, 2007.
14
Erin Pottie, “King coal back after nearly a decade: Xstrata announces scaled-back Donkin mining operation will
go ahead,” The Cape Breton Post, February 11, 2010. The Xstrata spokesman quoted in the article suggests
initial employment in the mine will be 200 but that the project should support “another 1,000 spinoff jobs.”
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mine water remediation within Cape Breton, transfer this knowhow to other remediation activities within
Cape Breton, and export related techniques around the world. Several private sector organizations have
come together to support this initiative through their involvement in the Cape Breton Centre for
Sustainability in Energy and Environment. This $20 million project will see a new centre based in Cape
Breton that builds on its access to a “living laboratory” of major project work. The centre will become
involved in research opportunities aimed at sustainable energy (e.g., geothermal, ocean, wind, biomass,
and clean energy from extensive coal deposits), and equip the local market with the research, knowledge,
and skills to address more than $1 billion in remediation activities that are in planning or ongoing in Cape
Breton.
Alternative Energy – Cape Breton’s reputation for natural beauty provides a fitting backdrop for its
emerging role in the development of alternative energy, which rated second as a development opportunity
following the port in the opinion of respondents to the ICSP Web Survey. Wind power, in particular, is
viewed as having significant positive potential for CBRM and Cape Breton. Cape Breton Island and
CBRM are already on the map for wind energy with facilities located as follows:
Point Tupper – x Enercon E48 800 kW, installed April 2006
Grand Etang, Inverness – 1x Vestas V47-660 (660 kW), installed October 2002
Glace Bay & Donkin – 2x Enercon 800 kW, installed November 2005
Lingan – 5x E70 2MW, installed January 2007.
In addition, plans have been formulated for a hydroelectric plant powered by water from Lake Uist near
Irish Vale. The sector will continue to face challenges, however. The Loch Lomond wind project was
planned to add 44 wind turbines along the Bras d’Or Lakes but was recently cancelled and the Lake Uist
project is currently on hold. There was also some interest expressed in the potential for wind power
related manufacturing that could take advantage of local experience in industrial manufacture. Recently,
Daewoo of Korea has agreed to establish a wind turbine manufacturing operation in the former
Trentonworks plant in the Town of Trenton, a Nova Scotia community with a similar industrial background
to CBRM.
Other alternative energy options may be derived from the island’s coal mining legacy. Cape Breton has
more than 3,200 kilometers of unused underground coal mines that are flooded with water that could be
used as sources for geothermal energy. New techniques to extract methane gas from existing coal may
also be applicable on the island. Coal bed methane is reportedly largely free of polluting components and,
according to the Geological Survey of Canada, the offshore areas of the Gulf of St. Lawrence and Sydney
Basins, where 69 and 9.3 trillion cubic feet of gas have respectively been projected, are the largest
coalbed methane resources in the Maritimes. Coal bed methane gas resources are present in the Prince
and Phalen mines within the Sydney coalfield. Combined, these mines contain 60 billion cubic feet of gas.
The feasibility of Green Projects like these is heavily dependent on funding sources. A key issue for many
projects of this type is the availability of carbon credits, which would considerably enhance their viability.
A carbon trading system has not, however, been established in Canada nor has the Nova Scotia
15
government developed any policy on emission reduction mechanisms.
15
The United States already enjoys a regional fixed cap regulatory system on emissions. The Regional
Greenhouse Gas Initiative (RGGI) of the Northeastern States came into force in September 2008. Nova Scotia
has been working with these states through the New England GovernorEastern Canada Premiers Climate
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Tar Ponds Cleanup – Federal and Provincial partners have committed $400 million to clean up more than
1 million tonnes of contaminated material left by the Sydney Steel plant. Awarding the design engineering
contract in October 2006, the Sydney Tar Ponds Cleanup is now being conducted by the Sydney Tar
Ponds Agency (STPA). In fulfillment of their mandate, the STPA has followed a procurement policy
designed to address work requirements while maximizing local economic benefits.
The project has significantly increased the capacity of local contractors and workers to participate in
complex environmental remediation projects. Cleanup work is also building capacity in the First Nations
communities, with a recently announced joint venture between Membertou’s MB2 and Beaver Marine to
execute a $15.2 million contract to collect and treat groundwater flowing over the Coke Ovens site.
Execution of the Design Engineering contract has also increased the capacity of local engineering firms
by attracting a breadth of skill sets that may not have otherwise located in CBRM. The impact of these
professionals on the local economy includes their household spending within Cape Breton as well as their
capacity to work from Cape Breton and attract projects to the area that require their critical mass of
specialized skills.
The Cleanup now stands as a significant example of environmental recovery and should be re-branded
from an environmental blight to an environmental success story that was achieved through the marriage
of international expertise and local capacity. The legacy of the Cleanup site can be used to help re-brand
the new Sydney/CBRM. CBRM also needs to work with the STPA and others to ensure that the
remediated land is appropriately reincorporated into the planning process. The availability of this land
creates significant opportunities for various developments, including satellites of CBU, senior’s
developments, recreational properties, and interpretation of the Cleanup project itself.
Health Care – The Cape Breton District Health Authority provides acute care, continuing care, programs
and services through its hospitals, clinics, and continuing care facilities within Cape Breton County,
Northern and Central Inverness County, and Victoria County. Aging population in CBRM and across the
island will clearly drive local demand for services. Opportunities include service to rural needs,
consolidation of seniors housing developments in urban areas, services in assisted living, recreation, and
physical infrastructure needs of an aging population, and health care services, including specialized
health care needs as well as trends in alternative health care approaches.
According to a 2008 sectoral study prepared for ECBC, the health care sector in Cape Breton employs
“approximately 270 physicians and over 3,000 other health care providers.” Across all health care
locations in Cape Breton, these staff annually deal with approximately 15,000 patient admissions,
16
125,000 emergency room visits, 24,000 ambulatory care visits, and 20,000 surgeries.
The Regional Hospital will continue to attract and retain highly qualified and skilled medical professionals
throughout its operations. The current capital campaign is raising funds from Cape Bretoners and others
to add a new Cancer Centre at the hospital. This expansion will create employment during construction
Action Plan. This framework is well-established with joint goals and mechanisms for monitoring and
benchmarking emissions.
Here in Nova Scotia, smart organizations and businesses are already strategizing to deal with carbon risk and
carbon opportunities. Minas Pulp and Paper recently registered their first carbon credits. Jacques Whitford, prior
to its merger with Stantec, committed to a completely carbon neutral business operation. Smart municipalities
such as Annapolis Royal and Bridgewater are implementing sustainability strategies that account for liability and
take advantage of the green economy.
16
Gardner Pinfold, Detailed Sector Profiles of the Cape Breton Economy, September 2008.
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and subsequent operation, as the centre is staffed and equipped to provide the intended services. In
terms of health and social benefits, the Cape Breton Regional Hospital will now serve the cancer
treatment needs of the entire Island as well as areas of the northern mainland as far away as New
Glasgow. Adding to the existing medical capacity of the region, the new cancer centre will bring another
group of highly qualified people into the area. This also means that residents in need of treatment will not
have to travel to Halifax or elsewhere for care. A major threat to the sector is the availability of labour,
particularly in the area of continuing care services.
Entrepreneurship and Existing Commercial Base – Entrepreneurship is growing in CBRM. Since the
commencement of the downtown façade program in CBRM, CBCEDA has tracked 57 new businesses in
downtown areas in which the government invested over the last four to five years. This indicates a new
and positive attitude where businesspeople are willing to take risks. Other indicators of the commercial
and retail base in CBRM include the opening of some IT businesses, continuation of traditional industries,
and a local retail sector that appears to many to be “doing well.”
Cape Breton Flight Institute – Standing as an example of diversification based on existing resources, the
Cape Breton Flight Centre, funded through ECBC, Atlantic Canada Opportunities Agency (ACOA), and
Nova Scotia Business Inc. (NSBI), will provide pilot training from locations at the J.A. Douglas McCurdy
Sydney Airport. “This professional training centre is filling the growing need for pilots in the expanding
economies of China and other emerging markets.” Although the centre was to have begun training pilots
in the Fall 2008, it now appears that the first students will be trained in the late winter or early spring of
2010.
Current/Planned Infrastructure Works – CBRM has aging infrastructure and with the expectation that
some of this will be replaced and or maintained there will be a baseline level of infrastructure replacement
and refurbishment ongoing. A number of major infrastructure projects were noted during our research.
These include the construction of the Point Aconi Power Plant, expansion at Stora, expansion at CBU,
construction of the cancer centre, and development of the pellet plant in Port Hawkesbury at the site of
the former Federal Gypsum plant.
Cape Breton University and Nova Scotia Community College – CBRM benefits greatly from the presence
of Nova Scotia Community College and CBU. While some would prefer that these education centres were
located closer to downtown Sydney, their location in CBRM has positive impacts on the local economy by
attracting students who spend money but do not generally require full-time employment during their
studies. Both institutions also support the local economy by responding to local training needs, incubating
business ideas, and contributing immeasurably to the intellectual life of the community.
Both institutions have an important role to play in building on CBRM’s established track record in
environmental remediation as partners in the development of technologically advanced remediation
methods. In particular, the new Centre for Sustainability in Energy and the Environment at CBU provides
an excellent partner for Cape Breton based businesses. Both CBU and NSCC are also well-positioned to
undertake applied research in alternative energy resources (e.g., geothermal, coal, wind, biomass). Cape
Breton, particularly the Highlands area, has a significant concentration of high wind areas.
These initiatives fit with the more general role of both institutions to support labour market training and
skills development. Both have a role to play in identifying local labour market gaps to ensure labour is
available and/or can be mobilized to respond to emerging opportunities such as the development of the
port. Educational institutions, furthermore, are important drivers in the development of value added
opportunities in the resource sectors as well as in shipping.
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Land Holdings – ECBC’s merger with DEVCO resulted in ECBC gaining control of roughly 500 parcels of
property covering more than 7,000 acres that can now be developed for a variety of purposes. ECBC will
work to redeploy these former DEVCO lands in fulfillment of their economic development mandate. One
cautionary consideration is the impact of making this land available on the current real estate market and
the market’s capacity to absorb newly available land without impacting existing real estate values.
Economic Development Expertise – CBRM has economic development professionals within ECBC and
CBCEDA who support the longer term viability and sustainability of the community. Both organizations
are regularly cited for their capacity to support the development of business initiatives in the region.
Many contacts also noted the resilient character of the local labour force, the body of exceptionally well
trained tradesmen, the general resurgence of entrepreneurialism in the area, and the fact that there has never
been a shortage of good ideas, notwithstanding that many need financial support to test their feasibility and
support their implementation.
3.3.6 Economic Challenges
While the list of good prospects for the underpinnings of an economically sustainable CBRM is long, these
opportunities and strengths are not without significant risks and challenges. Among the leading issues
mentioned by contacts in investigations to date were the following:
Employment Opportunities for Youth – Underlying the issue of out migration is unquestionably the lack of
employment opportunities for youth in CBRM. As noted above, this has further influenced the region’s
demographic condition by compromising the capacity of the region to sustain itself through natural
increase. Lately, it has also created concern that the region may not have a sufficient workforce to
capitalize on available opportunities.
Contraction and Disappearance of the Industrial Base – The closure of the coal mines and steel plant is
viewed as a negative given its impact on local employment and its related stimulus to out-migration.
However, there are some who view the “positive” aspects of this change – perhaps considering it
inevitable. Now that it has occurred, there is opportunity to embrace new directions.
Subsection 3.6
Declining Infrastructure – As outlined in , below, CBRM faces an infrastructure crisis as
declining numbers of residents gradually diminish its tax base. Collaboration with economic development
agencies by the Municipality is seen as essential to find the solution to this daunting problem.
It is also notable that Bell Aliant is investing $60 million to connect 70,000 homes and businesses in
Fredericton and Saint John with optic fibre technology by mid-2010. The initiative will provide both regions
with theoretically limitless bandwidth capacity for sending and receiving data. Similar service to CBRM
would provide a significant advantage to Cape Breton’s creative community, allowing locally based talent
to access some of the production and re-mixing services available around the world and opening a variety
of new business opportunities.
Maintaining Sufficient Labour and Skills – As noted, some citizens feel that CBRM may not have the
number of workers or skills needed to meet the demands of economic growth should it occur. The
situation is not, however, unique to CBRM as the population across Canada ages and the much less
numerous Baby Bust and Echo generations follow Baby Boomers into the labour force. Fortunately, with
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CBU and NSCC, the region should have the capacity to deal with training and professional development
required to fill gaps as they occur.
Overlapping Economic Mandates – ECBC and CBCEDA have generally well-defined roles in encouraging
economic development within CBRM; however, a number of other agencies and organizations operate in
CBRM with some level of responsibility for economic development. Focus group participants and other
contacts regularly referenced the need to address overlapping mandates and rationalize economic
development efforts. Related to this is a sense that the economic development direction/priorities of
municipal government were predicated on a better outcome to the issue of equalization payments. Some
have remarked with frustration that there was or is no “Plan B” and fear that without more substantial
economic development “[CBRM] will be simply a retirement community.”
3.4 Housing
Table 3.10
summarizes the characteristics of housing in CBRM in relation to the Province of Nova Scotia as
determined by the 2006 Census. The profile of housing by type does not reveal any striking characteristics.
CBRM has proportionately more single-detached housing and a lower proportion of apartment buildings but
that is typical of areas outside of HRM, which has more than 70 per cent of the apartment units in the
province. This is also a key factor in the slightly higher proportion of homeownership in CBRM.
The percentage of apartments in CBRM may, nevertheless, be an issue in relation to the changing population
composition of the area, as the size of households has declined substantially since 1991. Even with overall
population decline, the total number of private households on Cape Breton Island has increased by 5 from,
from 54,920 in 1991 to 57,655 by 2006 as a result of the declining number of large households. Over the
period, the number of 1-person and 2-person households increased by 29 and 26 per cent, respectively, while
3-person households decreased by 5 per cent, and households with four or more members were nearly
Figure 3.8
halved (i.e., decreased by 47 per cent) ().
Seniors show a clear preference to condominium and apartment accommodation due to reduced
maintenance responsibilities and, generally, one-level living. Even if population within CBRM continues to
decline, there may well be demand for accommodation of this type from the growing number of seniors.
Sydney is particularly well-suited to higher density accommodation geared to seniors given the availability of
health services and the established pattern of relatively denser development in the former city, as well as the
fact that wastewater from the area is disposed to municipal systems and the community is well-provided with
urban parks suited to the needs of elderly residents.
The most notable parameters on which Cape Breton diverges from the provincial norm are the percentage of
dwellings constructed between 1986 and 2006, and the value of owned buildings. New construction in CBRM
has been barely more than half the provincial average. Again, HRM, which has accounted for slightly more
than half of the new residential construction in the province, is a factor; however, 25.1 per cent of dwellings in
areas outside CBRM and HRM were built since 1986, which is eight percentage points ahead of CBRM.
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Figure 3.8 Household Formation, Cape Breton, 1991-2006
25
20
20
18
17
16
151515
14
15
1212
11
11
10
111111
10
5
3
22
1
0
1991199620012006
1 person2 persons3 persons4-5 persons6+ persons
Source: Census of Canada
The value of residential property lags by a very similar degree. The 2006 Census set the price of an owned
dwelling in CBRM at only 55.7 per cent of the provincial average. It is only 41.3 per cent of the value
attributed to dwellings in HRM.
The low value of residential property is a concern from the perspective that few local residents have built the
kind of equity in their homes that residents in Halifax have, and certainly much less than residents of other
major Canadian cities (the average value of an owned dwelling in Canada in 2006 was $263,369 or nearly
three times the value of a home in CBRM). This probably has the ironic effect of keeping many older residents
of CBRM from moving as their ability to own in most urban housing markets in Canada is severely limited. It is
also a potential attraction to others in expensive markets, particularly retirees who will find many relative
bargains in Cape Breton. Clearly, however, it impacts the local construction sector and may well influence the
perception of the local economy as housing prices are a highly visible economic indicator that many private
citizens consult almost daily.
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The weakness of the CBRM housing market is no doubt attributable to the challenges of the local economy
and, particularly, the outflow of
Table 3.10 Housing Characteristics, CBRM and Nova
population from the region. One
Scotia, 2006
feature of housing in CBRM that
Nova
Table 3.10
is not apparent from
Housing Characteristics CBRM
Scotia
but is receiving increased
Total private dwellings occupied by usual residents 42,010 376,845
attention within the municipality is
Single-detached houses 74.5% 67.3%
the phenomenon of abandoned
Semi-detached houses 6.5% 5.0%
and degenerating housing, which
Row houses 1.4% 2.1%
has given rise to increasing
Apartments; duplex 3.8% 3.1%
vandalism and arson among
Apartments in buildings with fewer than five storeys 10.6% 14.5%
other problems. Census figures
Apartments in buildings with five or more storeys 0.6% 4.0%
suggest that the number of
Other dwellings 2.6% 3.9%
private dwellings in the region fell
Owned dwellings 31,445 271,155
slightly from 1996 to 2001 but
Rented dwellings 10,565 103,870
rose from 2001 to 2006.
Percentage of owned dwellings 74.9% 72.3%
Dwellings constructed before 1986 34,890 270,960
Within the CBRM, however, it is
Dwellings constructed between 1986 & 2006 7,120 105,885
clear that a substantial number of
Percent of dwellings constructed between 1986 & 2006 16.9% 28.1%
housing units are no longer
Dwellings requiring major repair 11.6% 9.5%
occupied and/or are receiving
Average rooms per dwelling 6.6 6.7
minimal maintenance reflecting
Dwellings with more than one person per room 0.3% 0.4%
the low value placed on them by
Average value of owned dwelling $87,935 $158,000
owners. Quantitative estimates
Source
: 2006 Census of Population
based on physical inspection and
reference to records such as power connections place the number of units at 700; however, CBRM planners
feel there may be many more units that are unused. The related issues are summarized in a recent RFP
issued by CBRM to develop a Business Plan for the Affordable Housing Renovation Partnership (AHRP):
… the safety issues affect entire neighborhoods: Vandalism and arson are significant
concerns, dominating the agendas of the CBRM’s Protective Services Committee. Some
older urban neighborhoods have become less attractive to businesspeople and investors.
Although the population of the CBRM remains in modest decline, peripheral subdivisions
continue to be developed, sometimes at the expense of existing neighborhoods.
There is a concern that, if left unchecked, urban decline and “hollowing out” could become
self-perpetuating, resulting in the isolation of lower-income residents and making it difficult to
develop “innovation nodes” and maintain quality of place.
AHRP was formed by CBRM with the assistance of the Canada Mortgage and Housing Corporation and other
agencies “to undertake local demonstration projects, to develop capacity for locally led neighborhood renewal
exercises, and to develop educational initiatives on low-income homeownership options as an alternative to
renting from negligent landlords.” The Partnership has encouraged the start-up of a local Habitat for Humanity
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group, which is focusing on renovation and rehabilitation as opposed to construction of new units to meet
affordable housing needs.
3.5 Environment
While the encompassing nature of the natural environment makes it difficult to summarize succintly for any
locality, several issues stand out in CBRM. The image of Cape Breton Island and, consequently, CBRM
depends heavily on its natural environment, which is highly valued and frequently praised. The community
has made substantial progress in addressing environmental concerns even as it has dealt with economic
challenges. Most significantly, the demise of the steel plant left the largest contaminated site in Canada.
Considerable progress has already been made and further remediation is ongoing through a $400 million
remediation plan being funded by the Federal and Provincial governments. The plan, which has been in place
since 2004, calls for the stabilization and solidification of contaminated materials prior to capping of the site to
prepare it for redevelopment.
Subsection 3.6.3
CBRM has also dealt with very substantial water treatment issues as discussed in , below.
The Municipality has constructed eight water treatment facilities over the past decade. CBRM and other
municipalities are also required by the Statement of Provincial Interest concerning Drinking Water Supplies to
institute protection strategies for water supply watersheds. CBRM’s MPS addresses the issue of water supply
watersheds in detail and outlines the following challenge:
Almost 10% of the landmass of the C.B.R.M. is contained with the existing watersheds of the
surface lakes and the 10 year wellhead protection zone The C.B.R.M. only owns
approximately 10% of these watershed lands Over half of these CBRM lands are within the
Sydney 5 lakes watershed Of the remaining 90%, the Province of Nova Scotia owns
approximately 19% and the Federal Government owns just 1.7% with DEVCO claiming 1%.
In total, the 3 levels of government own less than 31% of the lands within the public water
supply watersheds. It would be reasonable for the C.B.R.M. to expect that the other two
levels of government will be more receptive to the implementation of a watershed protection
management plan than private landowners However, that leaves the Regional Municipality
with the problem of how to manage the other 70% of watershed lands. It would be a daunting
task for this Regional Municipality to attempt to purchase the nearly 7% of its entire landmass
that is both privately owned and located within the watersheds of its public water sources.
This becomes even more evident when the amount and type of developments are revealed.
The MPS suggests a major portion of this challenge can be addressed by decommissioning the Sydney River
watershed, which constitutes 77 per cent of CBRM’s water supply lands. The MPS also recognizes, however,
17
that zoning measures are the primary means of protecting remaining water supply areas. The CBRM Land
17
Illegal dumping is a major concern for several of the supplies. Traffic on Highway 125 and road maintenance on
the Sand Lake Road are also sources of contamination for two supplies, and mineral development is a concern
for Kelly Lake. There is also a large cemetery near Pottle Lake that is not regulated by Nova Scotia Environment
because it is too old. CBRM staff indicate that better cooperation from Provincial agencies is required to address
these issues.
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Use Bylaw contains a Public Water Supply (PWS) Zone, which strictly restricts future development in water
supply watersheds, although existing development is necessarily grandfathered. The zone is applied to the
Sydney aquifer, and the Pottle Lake, Waterford Lake/ Kilkenny Lake, MacAskill Dam Reservoir, Sand Lake,
Table 3.11
John Allen Lake, and Kelly Lake Watersheds (see , below, for communities served).
The CBRM Water Utility is currently developing water supply protection plans for each watershed. One has
been completed for the Kelly Lake Watershed serving Louisbourg and CBRM staff report that they are
nearing completion of the plan for the Pottle Lake Watershed, which serves the Northside area. Nova Scotia
Environment has also asked for source water protection plans for the wells at Floral Heights and Gardiner
Mines (the Radar Base has been exempted). Environment staff are working with CBRM Water Utility staff to
address these requirements in the near future.
Despite this progress, substantial challenges remain. The cleanup of a second steel plant site in Sydney
Mines has not been addressed, for example, and the region faces extensive issues related to closed mines at
various locations.
Another major concern is wastewater, which is largely disposed without treatment into Sydney Harbour.
Substantial developed areas on the fringes of the core area are unserviced and the pattern of separate
communities dotted around Sydney Harbour requires multiple expensive treatment plants. As discussed in
Subsection 3.6.4
, below, CBRM is dealing with wastewater concerns and has built a plant at Battery Point
that currently treats effluent from 60 to 70 per cent of the Sydney/Sydney River Watershed. Municipal staff
have nevertheless estimated that over $500 million is required to expand the system to service the balance of
Sydney and the other communities of the urban core.
Even areas of the community that are lauded for their environmental qualities require attention. In particular,
although the condition of the Bras d’Or Lakes is generally considered good, several areas of the lakes have
been closed to shellfish harvesting in recent years. The area is highly valued as a unique inland sea and as a
tourist attraction. Several government and volunteer organizations, including the Unama’ki Institute of Natural
Resources, the Eskasoni Fish and Wildlife Commission, and the Bras d’Or Stewardship Society, are working
to assess the health of the lakes, raise awareness about their protection, and undertake practical prevention
and remediation measures. As noted above, this has included the preparation of development guidelines
intended to reduce the risks of land development, wastewater disposal, and recreational boating.
While the foregoing are arguably the leading environmental issues confronting CBRM, they are not the only
concerns. With its extensive coastline and inland shores, combined with a tendency common throughout
Atlantic Canada to build close to waterbodies, the municipality has been significantly affected in the past by
coastal erosion, which is now being accentuated by the impacts of climate change. Global warming threatens
to increase water levels substantially. While the Municipality undertakes maintenance to protect its
infrastructure, rising sea levels and associated storm surges on the Atlantic Coast and within the Bras d’Or
Lakes system threaten waterfront roadways and structures if not through submersion then through erosion.
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Cape Breton Regional Municipality Integrated Community Sustainability Plan
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This has already been experienced in the vicinity of Glace Bay where erosion has required the reconstruction
of Grand Bay Road.
The MPS recognizes the general concern with coastal erosion with policy recommending cooperation with
“[senior] levels of government with the objective of developing comprehensive erosion setback provisions to
be implemented in the Land Use By-law.” This aligns with the recommendation of the Bras d’Or Lakes
Development Guidelines to establish a minimum elevation for new construction to minimize the prospect of
future inundation and/or erosion impacts. The Guidelines also recommend the institution of development
setbacks on the shores of the lakes and tributary waterways to reduce the impacts of flooding and preserve
vegetation on banks that filter contaminants from run off and can provide shading that is frequently beneficial
to the promotion of fish and wildlife in waterways. Watercourse setbacks are, in fact, becoming commonplace
across the province as municipalities become increasingly aware of their benefits and respond to the
requirements of the Statement of Provincial Interest concerning Flood Risk Areas.
3.6 Infrastructure
Given its substantial physical extent, dispersed settlement pattern, declining population, and challenging
economic situation, CBRM faces considerable infrastructure challenges. While loss of population has relieved
pressure for expansion of service networks and construction of new facilities to a considerable degree, the
Municipality must meet escalating regulatory standards. Falling population has also meant fewer people and a
reduced assessment base to pay for operation and maintenance of an existing infrastructure base that is
difficult to contract. This is further exacerbated by the age of most of the region’s infrastructure, which
generally ranges from 50 to more than 100 years old.
CBRM staff have prepared a detailed analysis of water, sewer, roadway, and solid waste management needs
18
from which much of the detail in the following subsection was derived. The Municipality has already made
significant investments in solid waste management and water treatment facilities as explained below. More
investments are required in both areas, however, with additional daunting requirements to develop a much
needed wastewater treatment system, the planning of which is in its initial stages.
Infrastructure management, furthermore, cannot focus solely on the specifications imposed by other
authorities or even on retrenchment. The community must make investments to facilitate economic
development, to address needs arising from change as opposed to growth, and to account for quality of life
considerations that are fundamental to retaining and attracting residents. Regardless, CBRM staff, estimate
that with current revenue sources it will be necessary to increase the municipal debt payment burden from the
current 15.8 per cent to 33 per cent of the Municipality’s annual budget to meet legal obligations. Staff have
emphasized the need to avoid service expansion of any kind to minimize this impact and to ensure that any
developments that proceed without municipal water and sewer services provide other related infrastructure at
18
CBRM Engineering Department, CBRM’s Infrastructure Accomplishments and Challenges: 2009 and Beyond,
undated PowerPoint presentation.
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Cape Breton Regional Municipality Integrated Community Sustainability Plan
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the time of their development to protect the Municipality from future costs should municipal takeover be
required. A related element of this protection is the collection of sufficient development charges to cover the
cost of future connection to CBRM services.
3.6.1 Community and Recreation Facilities
CBRM has extensive recreation and cultural facilities partly as a legacy of its pre-amalgamation organization
when each town maintained a broad range of recreation options. Facilities were comprehensively inventoried
by CBCEDA in 2002. Stantec has obtained this inventory but its reproduction has not allowed us to compile
information from it. Suffice to say that the list covers nearly 40 pages and reflects the number and variety of
parks, fields, and facilities that CBRM has inherited.
The Municipality manages recreation services largely through two staff members who are charged with
advising and assisting community groups that take the primary responsibility for managing and programming
facilities. CBRM has resisted the expansion of parks and facilities as its population has declined but demands
still arise in light of new considerations. The reduced proportion of youth in the local population has
diminished demand for traditional active recreation facilities such as ballfields and arenas; however,
preferences continue to evolve with the rise, for example, of women’s hockey and the increasing popularity of
soccer. Facilities, such as arenas, furthermore, are typically regarded as vital components of the community
fabric.
Two important community facilities that are under consideration in this light are the Northside Civic Centre to
be constructed in North Sydney and the proposed Membertou Arena. The cost of the Northside Civic Centre
is estimated at $12 million, which is to be sourced equally from all three levels of government. CBRM will
draw $2.5 million from reserves to cover the majority of its $4-million share, leaving $1.5 million to be raised
19
through fundraising by the Northside Civic Centre Society. Publicity material for Membertou Business Park
states that the Membertou Arena will feature geothermal ice making equipment, year-round ice rentals, an
indoor walking track, and seating for 1,000 spectators. It is currently the subject of feasibility planning.
Changes in population composition are also bringing about a broad shift in demand that while widely
beneficial to human and environmental health is not without costs. Older people general exhibit a preference
for passive, frequently outdoor facilities as opposed to the competitive team sports often favoured by youth.
Like many municipalities in the province, CBRM has undertaken an Active Transportation study to address
this need as well as encouraging walking, bicycling, and other Active Transportation modes as an alternative
to motor vehicle use. The study, which was completed in May 2008 by a consortium including Stantec and
IBI, developed plans for Active Transportation connections in each of the major communities of the urban
19
Julie Collins, ”Northside Civic Centre Society hopes to have deed in hand this week,” The Cape Breton Post,
June 16, 2008.
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core as well as a regional recreation network tying the core to scenic areas such as the Bras d’Or Lakes and
20
the Mira River.
While Active Transportation networks are inexpensive relative to most recreation facilities as well as to
roadways, and advance diverse sustainability objectives, they have costs. The current three-year budget to
meet Active Transportation objectives assumes nearly $1 million in expenditures by CBRM (i.e.,
approximately $330,000 per year). Fortunately, Active Transportation initiatives are well-supported by senior
governments and other agencies, which are expected to match CBRM with $2 million in funds over the three-
year period.
It is also notable that paths and walkways are often supportive of tourism as they can provide access to
attractive natural areas and special places. An important, long standing component of CBRM’s network of
trails and walkways is the waterfront walkway in Sydney. Major components of the boardwalk have been
developed to a high standard, most notably behind the Civic Centre and the hotels on the Esplanade toward
the Joan C. Harris cruise ship terminal. Unfortunately, a vital component of the connection has not been
completed immediately south of the terminal because of landownership issues. It would also be beneficial to
extend the connection farther north and to find means to increase activity along the length of the walkway by
enhancing marine access and introducing commercial uses in adjacent structures or seasonally through carts
or kiosks that would brighten and enliven the area. Other opportunities for waterfront development supportive
of tourism elsewhere in the municipality should also be pursued, particularly on the Northside.
3.6.2 Fire and Police Services
Both Cape Breton Regional Fire Services and the CBRM Police Department are considering replacing
existing buildings. Fire Services consists of three departments in Sydney and four more in its immediate
environs in the central portion of the urban core; two departments serving the Northside; five in the eastern
part of the urban core; and 22 rural departments. Consideration is being given to consolidating the three
Sydney departments into a single station. A consolidated service could save money in the long-run; however,
it would incur an immediate capital costs. Some citizens also question the adequacy of coverage that would
21
be provided by one station as opposed to three.
CBRM’s Chief of Police has also recently presented a plan to the Municipality’s Board of Police
Commissioners to build a new police headquarters and close the existing police stations in New Waterford,
North Sydney, Glace Bay, and Sydney. The estimated cost of the new structure is $21 million. Community
policing office “storefronts” would be expanded and other offices opened in business districts where the public
would have regular access to beat cops. A needs analysis prepared for the Police Department suggests that
20
IBI Group/Stantec, et al.,Cape Breton Regional Municipality Active Transportation - Final Report: Walking and
Cycling Towards Healthy, Connected Communities, August 2008.
21
Chris Shannon, “Councillors want more detail on fire stations,” The Cape Breton Post, December 1, 2009.
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Cape Breton Regional Municipality Integrated Community Sustainability Plan
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renovations and expansions of current police facilities would cost roughly $1.5 million more than the
22
construction of a new police headquarters.
3.6.3 Water
CBRM has made water treatment facilities a priority in recent years as it has strived to comply with the 2002
Provincial Water Strategy. The Municipality has eight water treatment facilities that draw on twelve sources of
supply within its boundaries. Supplies largely come from eight surface watershed areas covering 19,500
Table 3.11
acres; however, there is also one wellfield and three small wells used for water supply (). The
Pottle Lake water system is currently coming on line to serve North Sydney and Sydney Mines. With its
commissioning, treated water will be available to all areas of the urban core of the region (i.e., the former City
Figure 3.9
of Sydney and surrounding towns) (see ).
CBRM maintains roughly 750 km of water distribution piping and associated components. Approximately 50
per cent of this infrastructure is 50 years old. The other 50 per cent is approximately 100 years old. With
mandatory treatment requirements met, the focus of the water utility will shift to upgrading the distribution
system, on which maintenance has been largely deferred. CBRM is planning to direct the majority of available
capital monies to reinstatement and replacement of existing underground distribution infrastructure over the
next five years.
3.6.4 Storm and Sanitary Sewer
CBRM staff estimate that the Municipality has 900 to 1,000 km of sewer and stormwater piping, including
manholes and lift stations. As with water distribution infrastructure, 50 per cent of sewer piping in CBRM is
approximately 50 years old with the remainder mostly more than 100 years old. The Municipality has
generally deferred maintenance as it has dealt with other infrastructure priorities in recent years. Sydney and
Figure 3.9
the former towns of the urban core are for the most part serviced (see ), as is the Town of
Louisbourg.
22
Chris Shannon, “Police chief wants new headquarters,” The Cape Breton Post, November 17, 2009.
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Cape Breton Regional Municipality Integrated Community Sustainability Plan
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Table 3.11 Water Treatment Facilities, CBRM, 2009
Pumping
Opera-Cost
Communities Treatment Capacity Pipe
PlantSupply tional (millionPop. Services Hydrants
Served Process /Actual (kms)
Date $)
Rate
Sydney, Coxheath,
Westmount,Greensand
Sydney River, Middle Lake pressure
Sydney 1997 3.6/3.2 $10 26,000 9,000 820 205
Grand Lake Road, Road Wellfield filtration
Mira Road, Prime (GPF)
Brook
Glace Bay,
Dominion, Reserve MacAskill’s Filtration &
Glace Bay
May-03 3.5/2.2 $14.5 21,000 8,000 735 ~ 210
Mines, Tower Brook Dam clarification
Road,
North Sydney, Ultra
Northside Sydney Mines, Pottle Lake Jan-10 membrane4.2/3.2 $14 17,600 6,550 660 175
Bras d’Or, filtration
New Waterford, Dissolved
New
Waterford Lake,
Scotchtown, River Nov-08 Air Flotation 2.5/1.5 $11.2 9,400 3,550 295 85
Waterford Kilkenny Lake
Ryan, New (DAF)
Louisbourg,
Louisbourg
Fortress of Kelly Lake May-08 DAF 0.65/ 0.175$6.4 1,100 500 65 15
(Potable)
Louisbourg
1/N/A
LouisbourgLouisbourg fish 3 fish
Kelly Lake May-08 Chlorination$2.53 3 4
(Industrial) plants
plants
65 gpm/
Birch Grove Birch Grove John Allen Lake 2002 DAF
$0.550 320 110 17 5
0.024
120 gpm/
Port Morien Port Morien Sand Lake May-91 DAF $1.4 465 160 53 10
0.026
Pine Tree Park
Pine Tree
40 gpm/
(former Radar Well 2002 GPF $.050 250 85 15 3
Park0.024
Base)
Source
: CBRM Engineering
Wastewater generated in the urban core of CBRM is disposed untreated through approximately 60 outfalls
distributed along 25 km of coastline, although the Battery Point Wastewater Treatment Plant (WWTP)
provides treatment to a substantial portion of Sydney and is being expanded to serve the balance of the
former city. Wastewater from Lousibourg is also untreated. The Dominion/Bridgeport WWTP is under
construction to serve the area roughly corresponding to the former Town of Dominion. Various other areas on
Table 3.12
smaller cluster lagoon systems (see ). Substantial fringe urban areas and the extensive rural areas
of the municipality, however, rely exclusively on on-site septic systems.
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Cape Breton Regional Municipality Integrated Community Sustainability Plan
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The Municipality is developing a plan to provide wastewater treatment to the entire urban core based on three
divisions addressing its Central, East, and North sectors. The current status of each division follows:
Central Division – The Central division is expected to be served by separate systems for the Sydney,
Westmount, and Sydney River areas. Approximately 70 per cent of wastewater in the Sydney system is
already treated. The Sydney system includes the Battery Point WWTP and two large interceptor sewers.
CBRM’s first priority will be to complete the upgrade of Battery Point and construct several new
interceptor sewers so as to treat all wastewater generated within Sydney.
East Division – Staff assessment of the East Division suggests it will ultimately require six systems
serving Dominion/Bridgeport, Louisbourg, Port Morien, Donkin, Glace Bay, and New Waterford. The
Dominion/Bridgeport WWTP is now being commissioned and should be fully operational early in 2010.
North Division – The North Division is anticipated to comprise four systems for North Sydney, Sydney
Mines, Florence/Alder Point, and the Georges River.
The Municipality has recently engaged Harbour Engineering to prepare a Wastewater Management Strategy
to provide a more detailed assessment of its wastewater treatment needs. The study is expected to define
sewershed areas and establish CBRM’s requirements to meet wastewater demands. The strategy will enable
the Municipality to determine the best means to achieve these goals, including confirmation of proposed
treatment plant locations, and assessment of the cost effectiveness of separating storm and sanitary sewer
flows in each instance, as opposed to merely upsizing treatment capacities to accommodate existing
combined flows.
For this ICSP, CBRM Planning and Engineering staff have advocated the imposition of a Regional
Development Boundary. They have suggested limiting the serviceable area to within 200 feet on either side of
pipes already in the ground. The objective is to minimize future extensions of services to reduce future
operation and maintenance costs for pipes and to concentrate population as close as possible to established
related services such as roads, schools, and commercial areas.
The adoption of a Development Boundary, in any case, will require an amendment to the MPS. The Plan
Amendment process will necessarily involve review of the data employed by staff and consideration of
representations from the public. Following adoption, the MPS should provide for a process to amend based
on clear criteria, such as the presence of both water and sewer services, the objectives of increasing the
density and contiguity of development, the influence of significant natural or human-made barriers (e.g.,
watercourses, limited access roadways), the potential cost implications of the extension to the Municipality,
and the availability of alternatives that do not require extension of the boundary.
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Cape Breton Regional Municipality Integrated Community Sustainability Plan
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Table 3.12 Existing Sanitary Sewer Infrastructure, CBRM, 2009
Dry Weather Level of
Area System Name Process Area Served Population
Flow Treatment
Chemically
Battery Point Greater Sydney Area Enhanced
Enhanced Primary 24,500 7,000,000 igpd
WWTP (70%) Primary
w/ UV Disinfection
South West Aerated Lagoon w/ CBU, NSCC,
3,000 800,000 igpd Secondary
Brook Lagoon Cl2 disinfection Correctional Center
Contain and ship to Allan's Lane, South
Allan's Lane 30 9,000 igpd Secondary
Sewage Lagoon Bar
Radar Base Contain and ship to
Radar Base 400 120,000 igpd Secondary
Septic Tank Sewage Lagoon
Sewage Lagoon with
Birch Grove
Constructed wetland Birch Grove 200 60,000 igpd Secondary
Lagoon
disinfection
Centerville Sewage Lagoon w/
Reserve Mines 300 30,000 igpd Secondary
Lagoon Cl2 disinfection
Tower Road Sewage Lagoon w/
Part of Tower Road 100 30,000 igpd Secondary
Lagoon Cl2 disinfection
NW Trailer Park Contain and ship to
NW Trailer Park 20 6,000 igpd Secondary
Septic Tank Sewage Lagoon
Dominion/Bridge Sequencing Batch Greater Dominion/
3,000 800,000 igpd Secondary
Port WWTP Reactor Bridge Port
Recirculation Sand
Villa Drive RSF Filtration w/ UV Villa Dr, Bras d'Or 240 72,000 igpd Secondary
Disinfection
Pond Road Contain and ship to Pond Road, Sydney
80 24,000 igpd Secondary
Septic Tank Sewage Lagoon Mines
Little Pond Contain and ship to
Green Hill, Florence 100 15,000 igpd Secondary
Septic Tank Sewage Lagoon
Queen Street Contain and ship to
Queen St, Florence 40 8,000 igpd Secondary
Septic Tank Sewage Lagoon
Meadow Brook Sewage Lagoon w/ Meadow Brook
200 60,000 igpd Secondary
Lagoon Cl2 disinfection Subdivision
Source
: CBRM Engineering
Table 3.13
provides preliminary estimates by CBRM staff, who have indicated that with HST, engineering,
and 15 per cent contingency more than $500 million will be required for new systems over the next 30 years
in addition to $71.1 million already committed or spent. The entire program will upgrade and complete plants
required to treat all wastewater collected by municipal systems, connect to currently unserviced areas on the
edges of the urban core, and bring the existing treatment capabilities up to regulatory standards.
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Table 3.13 Proposed Sanitary Sewer Infrastructure Costs, CBRM, 2009
Central DivisionEast DivisionNorth Division
Cost Cost Cost
ProjectProjectProject
(million$)(million$)(million$)
Sydney System (completed items) Dominion/Bridgeport System (under
construction)
• Battery Point WWTP $12.0 • Dominion/Bridgeport WWTP $12.0
Chemically Enhanced Primary Treatment Secondary Treatment (SBR)
• Muggah Creek Interceptor $8.0 • Dominion Interceptor $7.0
Total$19.0
• Byng Avenue Interceptor Sewer $4.0
Total Project to Date $24.0
Sydney System (remaining items)
• Upgrade Battery Point WWTP $12.0
Secondary Treatment
• Whitney Pier Interceptor $5.5
• Sydney River Interceptor $6.3
• Radar Base Interceptor $2.2
• Mira Road (Extension) $2.1
Total $28.1
New Systems
Westmount Louisbourg $18.8 North Sydney $39.7
• Westmount WWTP (Sydport) $20.0Port Morien $10.1 Sydney Mines $28.1
Secondary Treatment Donkin $10.8 Florence/Alder $19.9
Point
• Westmount Interceptor $9.0Glace Bay $39.7 Georges River $11.0
• Coxheath/Keltic Dr. Interceptor $3.3New Waterford $53.0
Sub-total $98.7
$32.3Miscellaneous $3.0
Sub-total
Sydney River System
Sub-total
$135.5
• Sydney River WWTP (Braemar $19.0
Home)
Secondary Treatment
• 7 Mile Bridge Interceptor $9.9
• Floral Heights (Extension) $17.9
• Hampton Estates (Extension) $0.9
• Prime Brook Interceptor $3.6
Sub-total $51.3
Total Central $123.1Total East $135.5 Total North $98.7
TOTL NEW SYSTEMS$357.3
A
HST, Engineering (10%), Contingency (15%)$152.6
GRAND TOTAL (New systems only)$509.9
Source:
CBRM Engineering
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Cape Breton Regional Municipality Integrated Community Sustainability Plan
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3.6.5 Streets and Sidewalks
Figure 3.9
CBRM has almost 1,500 km of paved roads and an additional 600 km of unpaved roads. shows
Table 3.14
the transportation network within CBRM’s urban core. summarizes the ownership of roadways.
CBRM roads are maintained by the Department of Public
Table 3.14 Roadways, CBRM, 2009
Works, while Provincial roads, which include numbered
Kilometres
highways but also include rural J class roadways, are the
Owner %
Paved Unpaved Total
responsibility of the Department of Transportation and
CBRM 468 89 557 27.2%
Infrastructure Renewal (NSTIR).
Province 974 386 1,36066.3%
Miscellaneous 28 106 134 6.5%
Given the dispersed settlement pattern even in the core of
CBRM, it is not surprising to find a high proportion of
TOTAL
1,470 581 2,051
Table 3.15
residents travel to work by automobile (). The
Percentage
71.7% 28.3%
proportion walking or bicycling, concomitantly, was
Source
: CBRM Engineering
relatively low, and the proportion using transit much lower.
A desktop analysis of CBRM’s infrastructure by municipal staff assumed that approximately 70 per cent of
roads will require replacement over the next 50 years. CBRM’s focus with respect to road work has been with
its Arterial Collector program, which was put in place to protect previous investments in major road
infrastructure. Within the parameters of this program, the North region is almost complete, but the East and
Central regions are in need of attention.
Table 3.15 Mode of Journey to Work, CBRM, 2006
Mode of Journey to WorkCBRMNova Scotia
Car; truck; van (as driver) 28,560 77.7% 135,195 69.2%
Car; truck; van (as passenger) 4,400 12.0% 24,965 12.8%
Public transit 665 1.8% 14,235 7.3%
Walked or bicycled 2,280 6.2% 18,500 9.5%
All other modes 840 2.3% 2,530 1.3%
Employed Labour Force36,740195,430
Source
: 2006 Census of Population
CBRM currently pays NSTIR a portion of the annual costs for maintenance of roads that were retained by the
Province following amalgamation. Smaller investments have been made to provide gravel surfaced “J Class’
roads within the municipality with pavement under the “J Class” paving program. The “J Class” road paving
program is an initiative of Council to help expedite paving of older gravel surfaced rural roads by cost sharing
with NSTIR.
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Cape Breton Regional Municipality Integrated Community Sustainability Plan
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Given the slow growth of CBRM, the Municipality has not had to invest in substantial extension of its road
23
network, allowing it to concentrate investment on maintenance and repair. Financial constraints have,
however, limited the ability of the Municipality to take a proactive approach. Because of this, the majority of
road work being done is reinstatement of pavement rather than a full replacement, which would be preferable
in many cases.
The Membertou Connector Road is the only new roadway under development. The 2-kilometre road will
connect Kings Road via Churchill Drive in Sydney with George Street at the entrance to the Regional Hospital
through the Membertou Business Park. The link, which is being cost-shared with the Membertou Band, will
significantly improve access to the Business Park while also providing an alternative to the Sydney Bypass for
vehicles travelling east-west in the southeast quadrant of Sydney. Membertou will put up one-third of the $3.6
million cost and will also cover any cost overruns. The remaining two-thirds are expected to come from the
Provincial and Federal governments. CBRM will not make a direct financial contribution, although the
24
Municipality has applied for Federal stimulus funds to support the project.
Subsection 3.3.2,
In addition to road network improvements put forward in the Port to Port Study (above),
two other recent studies have assessed suggested roadway improvements in CBRM. The Trunk 4 Corridor
Study completed by CBCL Ltd. in 2004 assessed the improvement of Grand Lake Road (Trunk 4) between
Sydney and Glace Bay in view of the potential development for commercial purposes of lands fronting on the
25
road. The second, by economists Gardner Pinfold, assessed the feasibility and socioeconomic impacts of
developing the Fleur-de-Lis Trail from Louisbourg to Gabarus, a link that many feel would encourage
increased visitation to Fortress Louisbourg, where the report states visitation has fallen from approximately
130,000 per year in the late 1990s and early 2000s to roughly 115,000 in 2003-04, and to just 97,000 in
26
2006. The proposed roadway largely runs over federal lands associated with the fort and will require the
support of Parks Canada. The Gardner Pinfold report indicates that: “though Parks Canada has approved the
corridor for the extension, building it is not included in the management plan currently being developed for
Fortress of Louisbourg National Historic Site. This could change, but not without Parks Canada seeing the
27
extension as a funding priority [of the Provincial Department of Transportation and Infrastructure Renewal].”
23
New roads have been built by NS Lands in Harbourside Commercial Park on the former SYSCO site and by the
Nova Scotia Housing Commission off Bristol Drive in Sydney. Several private developments have also
augmented the road network including Mariner Estates, Hampton Estates, Liscomb Point Estates, and Fatima
Drive Extension.
24
Chris Shannon, “Municipality to apply for stimulus money for road on behalf of Membertou,” The Cape Breton
Post, December 11, 2009.
25
CBCL Ltd., Trunk 4 Corridor Study Final Report, Volume 1 Technical Report, October 2004.
26
Gardner Pinfold Consulting Economist Ltd., Economic and Social Impact of Completing the Louisbourg –
Gabarus Link (Fleur-De-Lis Trail), January 2008. p. 3.
27
Ibid., p. 52.
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Cape Breton Regional Municipality Integrated Community Sustainability Plan
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A final important road link emphasized in the MPS is the extension of Highway 104 as a four-lane divided
highway to connect to Highway 125. Currently, the four-lane controlled access portion of this route ends
shortly beyond New Glasgow. CBRM Council has proposed consideration of a toll road to Port Hawkesbury to
facilitate the timely completion of this link, which is responsibility of the Province.
Another notable feature of local urban roadways under the jurisdiction of CBRM is the generous width of
many roads and the prevalence of one-way streets in many areas. This is particularly notable in downtown
Sydney where Charlotte Street running north-south and most east-west streets are designated as one-way
routes. The drawback of one-way streets is that they often necessitate circuitous route-making, which
unnecessarily consumes fossil fuels and confuses users, most notably tourists who are unfamiliar with local
traffic restrictions. One-way streets have become particularly unpopular for commercial areas because they
28
discourage access, which makes the one-way designation on Charlotte Street particularly questionable.
The width of downtown Sydney streets also makes some excellent candidates for the introduction of bicycle
routes, enhanced pedestrian facilities, and general beautification. The Esplanade and George Street are
particularly striking candidates. Prince Street east of Terminal Road may also be worthy of consideration. All
have considerable width and, subject to more detailed study, could each probably accommodate a boulevard
and, perhaps, grassed median areas that could be planted with trees. The Esplanade has an important
tourism role as a complement to the waterfront walkway, while George and Prince Streets are entries to the
downtown that would benefit from more attractive and pedestrian friendly amenities.
3.7 Transit
Transit is a key element of most sustainability strategies since it offers substantial benefits in pollution
reduction and relief of congestion through the replacement of vehicle trips, particularly single occupant
automobile trips, and a transportation option for those without vehicle access. Bus services within CBRM are
provided by Transit Cape Breton, which is owned by the Municipality and operates two separate systems:
regular public transit and Handi-Trans or accessible transit. The system is operated as a division within the
Engineering & Public Works Department. Mechanical services including vehicle parts, fuel, and repairs are
provided by CBRM’s Fleet Department.
Bus service covers approximately 200 square kms in the eastern half of the urban core, including Sydney,
Figure 3.10
Glace Bay, North Sydney, Sydney Mines, Reserve Mines, and New Waterford (see ). Regular
transit is based on a route system with set a pattern of fixed times whereas Handi-Trans operates on a
booked service arrangement with scheduled times and locations. According to the MPS: “Only four routes
operate on an hourly rate daily, beginning prior to normal working hours and into the evening. The other five
only operate at peak morning, noon and late afternoon hours.” Both regular transit and Handi-Trans rely on a
mixture of municipal subsidy and cash fares for revenue requirements. Fares range from $1.25 to $5.00,
depending on how many zones are traveled.
28
See for example: PPS – Project for Public Places, “Traffic Calming 101,” http://www.pps.org/info/
placemakingtools/casesforplaces/livememtraffic.
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Table 3.15
Sydney has long had a bus service. Unfortunately, as , above, indicates, the proportion of CBRM’s
population that uses transit is very small. In fact, it is only one-quarter of the Nova Scotia average, which is
especially troubling when one considers that most areas of the province have no transit service at all. The
MPS, in fact is very pessimistic about the status of transit, stating (p. 7.10) that:
The revenue generated per route as a percentage of the cost of operating the route ranges
from a maximum of approximately 60% (Glace Bay to Sydney) to a minimum of less than
10% (downtown Sydney to Ashby). The CBRM’s public transit system is really a heavily
subsidized social service maintained by the overwhelming majority of taxpayers who don’t
use it for the benefit of those who have little or no other choice but to use it.
CBRM has recently engaged a consultant to conduct an operational review of Transit Cape Breton and
Handi-trans. The Terms of Reference for this comprehensive review specify the following priority issues:
Review of current operating conditions – routes, scheduling, operation conditions
Governance model – Council only
Fare structure – zones rates, Handi-Trans rates
Subsidy determination – general – per route - service
Service area existing and future opportunities
Criteria for Handi-Trans service
Rural servicing potential
Capital financing options.
The undertaking of this study is consistent with MPS policy calling for “a comprehensive survey” of the transit
system and its use.
3.8 Solid Waste Management
Solid waste collection and disposal within CBRM is done through a combination of trucking waste to
Guysborough, curbside collection of compost, and processing through a materials recycling facility. These
services were required to meet the requirements of the Provincial Solid Waste-Resource Management
Strategy established in 1995. The mandatory requirements of the strategy involved the following goals:
50 per cent deferral of solid waste from landfills by 2000
Establish regional disposal facilities which meet or exceed Provincial Disposal Standards by the end of
2005
300 kg per capita per year by 2015.
To meet these requirements, CBRM decommissioned and dismantled its former incinerator and closed the
City of Sydney landfill. A waste transfer station was constructed in Harbourside Commercial Park from which
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solid waste is trucked to a second generation landfill in Guysborough County. CBRM has also established an
active Construction and Demolition (C&D) landfill on land adjacent to the former landfill site.
CBRM has implemented a curbside compost collection service to meet the 50 per cent diversion requirement
of the Provincial Strategy. This has included construction of a state of the art “in vessel” compost facility on
the former Sydney landfill site. CBRM secured new waste collection vehicles for compost pick-up and
distributed organic green carts to the majority of residents within CBRM. Residents outside the compost
collection area have been provided with at
Table 3.16 Recent and Future Solid Waste
home composting bins.
Capital Expenditures, CBRM, 2009
ProjectCost
The materials recycling facility to which
Recent Capital Expenditures
CBRM residents bring their recyclables was
Construction of new waste transfer station $4,200,000
constructed as well to meet diversion
• New waste collection vehicles $1,500,000
requirements. A spring cleanup collection
• Materials recycling facility $3,300,000
program has also been instituted to reduce
• Organic green carts $2,500,000
the amount of illegal dumping that occurs
• Leachate collection line $490,000
during that time of the year. CBRM in
• Compost facility $14,100,000
partnership with the Atlantic Coastal Action
TOTAL TO DATE$26,090,000
Program (ACAP) - Cape Breton has
Anticipated Future Capital Expenditures
implemented an extensive education and
New Landfill Cell Construction (C&D) $675,000
media strategy to educate residents to use
• Compost Facility Expansion $5,500,000
the composting program and recycling
• Retired Landfill Closures $36,400,000
facility more effectively. In total, CBRM has
PROJECTED CAPITAL COSTS REQUIRED$42,575,000
spent $26 million on solid waste related
Source
: CBRM Engineering
Table 3.16
facilities ().
The cost of transporting waste to Guysborough is a concern. CBRM also faces the possibility of further
expenditures to close and cap, and collect and treat leachate from additional landfills within its boundaries. To
meet the last requirement of the Provincial Solid Waste Management Strategy, CBRM will have to increase its
diversion of waste from landfills to 70 per cent. To accomplish this, the Municipality will most likely have to
implement a clear bag recycling program. Capital expenditures are also expected to construct a new landfill
cell for additional construction and demolition material as well as an expansion of the composting facility that
Table 3.16
will exceed the cost of all other completed and planned solid waste expenditures (see: ).
3.9 Governance
CBRM is one of three regional municipalities in Nova Scotia. It was the first of the three formed when it came
into being through amalgamation in 1995. In Nova Scotia, all three regional municipalities encompass
extensive rural areas and in all three cases the primary centre of population happens to be close to the centre
of its region such that the influences of each urban concentration are almost entirely under the control of the
regional jurisdiction. These regional structures have proven particularly beneficial for the creation and
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29
Subsection 3.9.1
Evidence presented in , following, also
implementation of regional land use planning.
suggests that regional administration has been cost-effective for CBRM.
Subsection 2.4.1
The draft ICSP Discussion Paper discussed in , above, placed considerable emphasis on
the issue of Governance. Its position on amalgamation was largely positive but the report contended that the
key levers of development were beyond the reach of municipal government and that equalization revenue to
which the region should be entitled was denied by its position within the Province of Nova Scotia. In
consideration of this, the Discussion Paper urged the “establish[ment of] a regional legislature and assume
30
responsibility for the broad spectrum of provincial and municipal goods and services.” The decision of
Council not to approve the report appears to have rested, at least in part, on the judgement that this was not
realistic. The issues that the earlier document identified are, however, real and the adaptation of local
government remains an important concern of this ICSP.
3.9.1 Expenditures
At the time of CBRM’s amalgamation, at least five of the eight municipal units involved were in severe
financial difficulty. Amalgamation has allowed CBRM staff to manage municipal affairs comprehensively and
less expensively. CBRM has continued to face substantial financial challenges; however, it has provided a
Figure 3.11
reasonable level of service to residents while remaining financially solvent. As illustrated in
showing the sum of operating expenditures along with total Fiscal Services charges for all of the separate
units immediately before amalgamation in 1994 along with the comparable figures for the Regional
Municipality in selected years since, CBRM lowered municipal expenditures on amalgamation and has been
able to keep its costs down in subsequent years, while nevertheless reducing its debt and related costs (i.e.,
Fiscal Services).
The economy of CBRM’s operations is, in fact, impressive relative to Nova Scotia’s 54 other municipal units.
th
Table 3.17
As indicates, CBRM expenditures per capita are close to or below the median (i.e., 28) for every
31
service category presented with the exception of Fire Protection. In terms of CBRM expenditures as a
proportion of the average for all municipal units, CBRM is below the average in every category shown except
Fire Protection and Transportation Services. In some aspects, such as the cost of General Government
Services and Environmental Development Services (i.e., Planning and Economic Development), CBRM
spends markedly less than other municipal units.
29
See: Austin French, “The 2006 Halifax Regional Planning: Process and Overview,” Plan Canada, Spring 2007,
pp. 40-43, and John Heseltine, “Urban and Regional Planning in Atlantic Canada's Amalgamated Municipalities,”
Plan Canada, Winter 2008, pp. 27-31.
30
CBRM’s Integrated Community Sustainability Plan: A Discussion Paper, presented to CBRM Council, September
15, 2009, p. 139.
31
bold
Service categories shown include all broad total expenditure categories (in ). Some subsidiary categories of
interest are also shown. Subsidiary categories are components of the broad category immediately below.
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Figure 3.11 Operating Expenditures, CBRM, Pre- and Post-amalgamation
$180,000
$160,000
$140,000
$39,327
$120,000
$100,000
$19,169
$26,110
$30,613
$80,000
$60,000
$114,958
$88,364
$40,000
$77,792
$73,726
$20,000
$0
1994199920052008
TOTAL (2006$)Fiscal Services (2006$)
Source
: Service Nova Scotia and Municipal Relations
The efficiency of CBRM, furthermore, compares well with the province’s other two regional municipalities. In
all but three categories, per capita expenditures by CBRM are lower than per capita expenditures by HRM.
CBRM is less efficient than Queens in only six of 15 categories. The economy of CBRM’s operations is, in
fact, impressive relative to most of Nova Scotia’s 52 remaining municipal units (i.e., towns and rural
municipalities). Despite its large area, scattered pattern of urban development, and significant economic
challenges, CBRM manages to provide municipal services at three-quarters of the per capita cost of the
Table 3.17
typical Nova Scotia municipal unit (see: TOTAL in ).
3.9.2 Revenue
One reason for CBRM's lower expenditures is, admittedly, its constrained revenue. An important measure
used by the Province to determine the "financial health" of its municipalities is its own-source revenue base as
represented by total uniform assessment, "the total of the taxable property assessment plus the value of
grants [the municipal unit] receives from special property tax arrangements." The most recent compilation of
nd
uniform assessment per capita for 2009-2010 ranks CBRM 52 of 55 municipal units in Nova Scotia.
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Table 3.17 Rank of CBRM Among Nova Scotia Municipal Units by Expenditure per
Capita, 2008
Region of CBRM % of
Indicator CBRM HRM
Queens Average
- Legislative 51 53 37 43.6%
- General Administrative 38 15 42 67.8%
Total General Government Services 472445 57.6%
- Police Protection 24 23 32 96.7%
- Law Enforcement 52 17 5 61.0%
- Fire Protection 16 9 46 115.0%
Total Protective Services241737 97.0%
Total Transportation Services 27733 121.2%
Total Public Health and Welfare Services 25 40 2 89.6%
Total Environmental Development Services 45 22 20 34.3%
- Recreation Facilities 28 36 33
- Libraries 41 1 14 61.4%
Total Recreation and Cultural Services 312033 66.7%
Total Fiscal Services 5158 50.2%
Total Operating Expenditure 37923 74.2%
TOTAL37421 75.0%
Source
: Service Nova Scotia and Municipal Relations, Annual Report of Municipal Statistics for the fiscal year ended March 31,2008
(rankings and average calculations by Stantec)
The fundamental reason for this is the weakness of CBRM's commercial tax base in the wake of the closure
of the steel mill and coal mines. In terms of total acreage of commercially assessed property, which only 28
th
municipal units report, CBRM ranks 24. That places it behind the other two regional municipalities (HRM and
Queens, which are first and fourth respectively) and every county or municipal district in the province. For the
most part, this data is not available for towns. The four that do report commercial acreage hold down positions
nd
25 through 28 behind CBRM but it is shocking to consider that the tiny Town of Mulgrave, which ranks 52 by
population, has 80 per cent as much commercial acreage as CBRM. When commercial acreage is divided by
th
population to obtain a per capita figure, CBRM ranks 28 and distantly last.
The recent trend in municipal revenue is also a source of concern, although not entirely discouraging. Over
the five years from 2004 through 2008, tax revenues collected by CBRM have lagged behind the growth of
Figure 3.14
tax revenues to all Nova Scotia municipal units, as illustrates. Revenues have, however,
increased marginally in CBRM despite ongoing population losses, perhaps indicating the stabilization of the
local economy.
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Figure 3.12 Total Tax Revenue (constant 2008$), CBRM and all Nova Scotia Municipal
Units, 2004-2008
$1,000,000,000
$1,006,494,524
$978,490,987
$950,003,583
$922,856,026
$907,078,379
$800,000,000
$600,000,000
$400,000,000
$200,000,000
$83,511,054
$79,373,897$80,114,194
$78,290,743$78,893,293
$0
20042005200620072008
CBRM ($2008)Nova Scotia ($2008)
Source
: Service Nova Scotia and Municipal Relations
3.9.3 Council
Data above suggests that the operations of CBRM Council are very cost-effective. The costs of Councillor
st
salaries and support is accounted under the “Legislative” heading in which CBRM ranks 51 of Nova Scotia’s
Table 3.14
55 municipal units in terms of per capita expenditure (see: , above). One reason for this is that
rd
Table 3.14
CBRM is the second largest municipal unit by population. HRM, the largest, ranks 53 (see: ,
above). CBRM residents pay less than half as much per capita for their Council as typical residents of Nova
Scotia.
The structure of municipal councils in the province is largely dictated by the Municipal Government Act. Under
the Act, regional municipalities like CBRM are required to have a Mayor elected at large and Councillors
elected on a district basis. All towns elect Council members at large but the Act does not provide for at large
representation in regional municipalities. Halifax established community councils to deal with sub-areas of the
municipality when their regional government was formed in 1996 but the Act no longer permits these
structures. They persist in HRM only because they have been grandfathered.
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Table 3.18 Municipal Council Size and Representation, Nova Scotia, 2009
TownsRegionsRuralsALLCBRM
Population
Number of Units 31 3 21 55
Population 107,275 490,038 316,189 913,502 105,968
Average
3,460 163,346 15,057 16,609
Population
Method of Election
2 At large/
Mayor At large At large At large
19 from council
Councillors At large District District N/A District
Representation
Political
196 51 191 438 17
Representatives
Average
6.3 17.0 9.1 8.0 6.23
Representatives
1,000 residents
0.55 9.61 1.66 2.09 145.33
per Rep.
2
Km per
1.48 203.11 221.31 120.82
Representative
Source
: Service Nova Scotia and Municipal Relations, Stantec calculations
In any case, CBRM’s political representatives (i.e., the Mayor and Councillors) serve roughly three times as
Table 3.18
many residents as the average Nova Scotia municipal unit (). On the other hand, the area covered
th
by CBRM Councillors ranks 16, which is toward the bottom of all regional and rural municipalities and fairly
close to the average area for all Nova Scotia municipal units.
Community members consulted generally appear to feel that CBRM’s Council is too large. Reducing Council
size was the most frequently selected priority among Governance issues offered to respondents to the Web
survey and gained the most first place ratings. While Web survey respondents were not sufficiently numerous
to be considered definitive, the issue was also raised in Focus Groups and came up in some of our
interviews. The primary concern appears to be with the dynamic within Council and, particularly, the feeling
among some more critical observers that Council is parochial in dealing with many issues.
CBRM has recently issued a Request for Proposals to assess Council size and boundaries. The assessment
is required pursuant to an order of the Nova Scotia Utilities and Review Board. Working with CBRM’s
Boundary Review Committee, the consultant will be required to first determine the most appropriate Council
size through consultation with the public, and then work with CBRM staff and the public to determine the most
appropriate boundaries for the necessary districts.
3.9.4 Planning and Cost Control
In 2004, CBRM adopted its own comprehensive municipal planning strategy or MPS, which clearly sought to
take advantage of the ability created by amalgamation to finally coordinate regional development:
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This is the first Municipal Planning Strategy to be in effect throughout the jurisdiction of the
CBRM. Until the adoption and approval of this document the CBRM was still administering
the Municipal Planning Strategies and land use By-laws adopted by the eight former
municipalities adopted prior to their 1995 amalgamation The legacy of that political
fragmentation was a total of 15 Municipal Planning Strategies and land use By-laws each
governing a specific geographic area without any relationship to the other areas or the region
This first Plan of our new community of communities intends to set out a clear and unified
vision of the future CBRM based on the aspirations of business constituents institutions and
other stakeholders in our community It is not an amalgam of the above mentioned documents
32
but a new document prepared to foster the combined strengths in our municipality.
Engineering staff are planning infrastructure improvements such as the recently completed water treatment
program and the planned wastewater treatment strategy in this context. Recreation, finance, and protective
services are likewise better coordinated, although staff face continued challenges to rationalize their delivery.
The ultimate planning challenge, however, is to rationalize the community itself. Planners often have difficulty
in communicating the benefits of controlling sprawl given the complex mix of public and private services
influenced by the distribution of homes and businesses; however, the cost estimated by CBRM Engineering
staff to provide wastewater treatment to the region provides a dramatic illustration. Assuming generously that
70,000 CBRM residents can ultimately be connected to the proposed collection of treatment plants, the
capital cost of wastewater treatment in CBRM at $510 million for the entire system, equates to roughly $7.25
million per 1,000 people. By contrast, HRM, has spent $332 million to provide services to approximately
33
300,000 of its 372,679 residents (2006 Census), or a little more than $1 million per 1,000.
The communities of CBRM are not to “blame” for the settlement pattern that has evolved in the area. As noted
Subsection 1.3
in, above, several towns grew around Sydney Harbour to mine coal and Louisbourg
developed on its own from its unique historic roots. The distribution of population in CBRM, however, clearly
has costs and exacerbation of existing “sprawl” will have further costs just as its mitigation can produce
savings. Controlling the distribution of development can also protect the environment and can yield an
32
CBRM, Municipal Planning Strategy of the Cape Breton Regional Municipality, adopted by CBRM Council,
August 25, 2004, p. 1.4.
33
A qualification is that HRM had three plants in place before undertaking the current Habour Cleanup to which the
$332 million cost refers.
The same probably applies to water treatment, the facilities for which Halifax communities developed too far in
the past to provide a meaningful point of comparison. It also does not even begin to account for the additional
costs of extended water and sewer networks, or for road and utility networks required within each community as
well as to connect communities to each other. At the same time, we recognize the investment by CBRM and its
predecessor units in community facilities, and the massive private investments in homes and businesses in each
established community that cannot be abruptly abandoned.
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important social dividend by facilitating social interaction and enhancing security. To accomplish this,
particularly in circumstances of declining population, decisions are required to favour areas that are most
economical and most attractive to the market, and these are not easy decisions to make.
An approach favoured by economists and many municipalities has been “true cost pricing,” which essentially
means charging fees for services that reflect the total value of the commodity provided. This is reasonably
easy to understand with respect to pricing for a commodity like water, which has been the subject of
sustained effort over many years to assert its real market value. Municipal governments have traditionally
charged only for the incremental cost of providing water, ignoring the cost of pumping, treatment, and
distribution infrastructure and operation that is intrinsic to delivering water to the user’s tap. While it is
acknowledged that water is essential to life, advocates of true cost pricing point out that providing water at an
artificially low price encourages over consumption. This results in ever increasing expenditure by suppliers
(i.e., municipalities) to expand delivery infrastructure and even environmental damage from draw down of
supply sources.
This situation is common for other municipal services such as sewers and wastewater treatment, and roads.
In addition to being locally oriented, infrastructure and services in these categories are amenable to user
charges. Historically, however, when the technology was lacking or, sometimes, too costly to measure
consumption or use properly, relatively crude methods were used to charge users. In the case of water this
was exemplified by the use of flat rate or per fixture charges, which arguably provide an incentive for waste
(i.e., the benefit that the user derives from their fixed payment is directly proportional to the amount they
consume). In the case of sewers and roads, this has traditionally meant that no charges are made at all and
costs are met from general revenue with consequences similar to the application of flat rates.
With better technology now available for measurement as well as growing awareness of the environmental
consequences of over use and waste, municipalities are increasing the use of metering and tolling to recover
their costs. Municipalities are also becoming increasingly aware of the relevance of initial capital costs,
rehabilitation costs, and the costs of failure of systems, issues that are tightly interwoven with land
development and related standards (i.e., zoning, subdivision, and similar regulations).
Whereas land development patterns have widely different impacts on infrastructure costs, as demonstrated
by the anticipated costs to meet CBRM wastewater treatment needs, the imposition of development costs on
developers and through them on new homebuyers and businesses can have very significant benefits for local
governments beyond simply paying for pipes and pavement. Insofar as municipalities benefit when
development is compact and concentrated, developers need to be discouraged from dispersing development,
an approach that was at one time facilitated by municipal and Provincial governments that contributed
significantly to road and trunk service costs, and assumed a variety of other heavy costs such as the provision
of schools and recreation services. Government provided another significant boost by assuming the
ownership of even local elements of infrastructure taking on the costs of maintenance and eventual renewal.
Furthermore, if systems were poorly built or failed, as can often happen with on site sewer systems and wells,
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which are ostensibly private when they are constructed, governments traditionally absorbed the cost of
solutions that were too expensive for private owners or without which public health would be at risk.
Governments have been stepping back from practices of this type for some time. The Province of Nova
Scotia no longer contributes to remedial projects to install water and sewer systems where on site systems
have failed and municipal governments normally levy charges on benefitting property owners when they have
no choice but to respond. Many municipalities have begun to employ development charges giving developers
increased motivation to design more compactly but also, and in particular, to develop closer to existing
infrastructure networks. Some provinces and local governments are now looking at methods to internalize the
life cycle cost of development to protect themselves from concerns such as the potential of contaminated
water in developments relying on septic disposal or the failure of communal systems such as package
treatment plants. Ontario, for example, has recently adopted a Financial Plans Regulation that requires
municipalities to develop plans to account for all costs of water systems and encourage their recovery through
user pay.
True cost pricing is particularly suitable for areas where on site systems or cluster systems are established or
the only alternative. Accurate calculation of future risks and provisions to set aside monies in reserve to cover
the cost of failure will protect the Municipality and ensure that home buyers are not drawn into development of
uneconomical communities by low initial costs. The Province created legislation allowing the creation of
Wastewater Management Districts (WWMDs) to provide a framework for managing these situations in rural
areas. WWMDs provide a context within which systems can be effectively managed and costs equitably
allocated. The Municipality can support WWMDs by providing professional advice on the maintenance of
systems. Hiring engineering staff with appropriate expertise in on site systems could be very cost effective for
34
CBRM if it forestalls the need to services areas such as Floral Heights.
The regional municipal structure in CBRM is beneficial for enforcing regulations of this type, as it is not
normally feasible for developers or even individual home builders to evade requirements in adjacent
jurisdictions. CBRM, however, has largely adopted a “pro-development” stance for fear of discouraging
development. This includes foregoing dedication of recreation land as well as the levy of development
charges and imposition of a servicing boundary, which is a commonplace feature of most large urban
jurisdictions. Although not inherently popular, all of these measures could save CBRM costs at the outset of
development as well as in the longer run by reducing future operating costs and capital investments in
supporting municipal infrastructure.
If recreation land dedication is imposed at the five per cent level automatically permitted by the Municipal
Government Act or the 10 per cent level permitted by the act where supported by MPS policy, cash-in-lieu
contributions are permitted that could build up a fund to meet existing community needs. Alternatively, the Act
34
Alternatively, CBRM staff have suggested that the necessary capacity may be available through ACAP (Atlantic
Coastal Action Plan) Cape Breton, with which CBRM or residents of specific WWMDs might contract for the
necessary expertise.
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also now permits in kind contributions from developers, which can mitigate their financial burden while
ensuring that the Municipality receives useable facilities.
These benefits will translate into lower tax rates for residents, the ability to enhance maintenance of existing
infrastructure, and/or the accumulation of funding that can be applied to major community projects. Arguably,
also, measures of this type can benefit developers by removing financial questions that often discourage
municipal approval (e.g., the municipal ability to finance the extension of trunk services or concerns with the
costs of assuming failed infrastructure). They can be further enhanced for developers if they are combined
with so called Smart Growth measures supportive of higher density development that reduce infrastructure
demands and, therefore, development costs. Higher density residential development is needed in CBRM, in
any case, to accommodate the municipality’s growing senior population.
CBRM’s current municipal structure is also well-suited to addressing typical municipal environmental
concerns such as the maintenance of watercourse buffers and the protection of water supply areas. The
primary area of environmental concern for CBRM that extends beyond its borders is the protection and
enhancement of the Bras d’Or Lakes, on which all three Cape Breton Island counties front in addition to
CBRM. Even in that respect, CBRM benefits from the coordination of its neighbours through the Eastern
District Planning Commission (EDPC), which provides services to all three island counties, the Town of Port
Hawkesbury, and Antigonish County. The EDPC, for example, participated in the Committee that oversaw the
preparation of the Bras d’Or Lakes Development Guidelines.
3.9.5 Economic Development
Although CBRM has controlled costs effectively, the Municipality cannot focus solely on retrenchment. Focus
Groups and interview subjects have made it clear that the community wants to grow. While CBRM has done
an admirable job of working within its limits, the Municipality has a role to play in restoring the local economy.
Most members of the community appear to view the Port of Sydney as the primary hope for development in
the core of the region. CBRM has a minor financial role to play in port development but a very important role
to play in advocating and facilitating of port improvements and in the exploitation of benefits that may be
derived from increased port activity. If the port develops as hoped, appropriate connections to its facilities for
related businesses and workers will be a vital component of a sustainable community.
CBRM is often cast negatively by representatives of other agencies involved in economic development. The
position of the Municipality, however, is a difficult one. The economic development responsibilities in Nova
Scotia are defined in the Municipal Government Act and are essentially limited to promotion of the
municipality as a location for business. The Act also permits municipalities to “pay grants to a body corporate
for the purpose of promoting the municipality,” which CBRM has chosen to do in assisting CBCEDA to be the
primary economic promotion agency in the region. Municipalities, for example, are not permitted to provide
subsidies or incentives to business organizations, which is one of the principal tools used by Provincial and
Federal agencies to stimulate economic activity.
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The economic development function within the CBRM bureaucracy is the responsibility of one dedicated staff
member. Although the Manager of Economic Development can draw on the skills of other staff members,
particularly with the Planning and Development Department, his powers are limited. CBRM owns two
business parks: Cossitt Heights and the Northside Industrial Park, both of which it has promoted in
cooperation with CBCEDA. CBRM has recently decided that Cossitt Heights, where only about a quarter of
the land has been developed over many years, is not attractive to businesses. The Municipality has
consequently determined to develop remaining lands for residential purposes, leaving it with only 120 acres in
the Northside Park for future business occupants. Sydport Industrial Park owned by Laurentian Energy and
Harbourside Commercial Park owned by Nova Scotia Lands, both of which are much larger than either of the
municipal parks, are however also available within the boundaries of the municipality as is the burgeoning
Membertou Business Park in Sydney. Even without Membertou, for which we have not been able to obtain
Table 3.19)
land area data, the region has over 500 acres of available land all within its core (.
Table 3.19 Occupied and Vacant Business Park Lands, CBRM, 2009
Occupied Vacant% of
Business Park Owner TOTAL
Land Land Total
Cossitt Heights Business Park CBRM 37.6 ac N/A* 37.6 ac 8.7%
Northside Industrial Park CBRM 183.6 ac 120.7 ac 304.3 ac 23.6%
Sydport Industrial Park Laurentian Energy 198.5 ac 401.4 ac 599.9 ac 46.5%
Harbourside Commercial Park NS Lands N/A N/A 272.3 ac 8.7%
TOTAL 419.7 ac 522.1 ac 1,214.1 ac 100.0%
Membertou Business Park Membertou Band N/A N/A N/A
* Cossitt Heights includes74.9 ac of undeveloped land recently redesignated for residential development
Source
: Compiled by Stantec from various sources
The role of the Municipality, therefore, is much less as a developer than as a supporter of development. While
developers themselves are responsible for on site development costs, CBRM must determine the most
effective disposition of its limited resources to facilitate projects that offer the best and most reliable prospects
of return to the community. With numerous business entities and development agencies seeking to advance
Table 3.20
projects of interest (see ), CBRM is unlikely to please all participants at once.
For this reason, a number of respondents believe that CBRM would benefit greatly from better coordination of
development efforts; if not directly under its auspices then through the formation of a multi-stakeholder
external coordinating body. Such a committee perhaps organized by the Chamber of Commerce or Cape
Breton Partnership, or another similar entity would respond to a leading issue raised by participants in Focus
Groups dealing with cultural and social issues, as well as representatives concerned with economic
development. This would be further enhanced by the consolidation of existing bodies where possible in each
field to encourage economies of scale, reduce duplication, and shift a least some of the difficult decisions
between prospective initiatives into the realm of their promoters. Certainly the formation of new entities to
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promote specific projects or advocate specific causes should be undertaken only with careful consideration of
the need in relation to the capabilities of existing agencies.
While CBRM should be an active participant in such an agency, its role is likely to remain that of a gatekeeper
and assessor. With a revenue base that it is struggling to maintain, the Municipality must continue to manage
its funds prudently. CBRM is not in a position to invest wastefully on speculative or ill-advised projects, or to
distribute monies ineffectually to satisfy political as opposed to practical needs. Whether the Municipality
should take a more substantial role as an “economic developer” is open to question. For example, if the
Municipality seeks to hold and sell more land itself, it may well have incentives to favour its holdings over
others, which would tend to discourage private initiative.
Table 3.20 Economic Development Organizations, Cape Breton, 2010
Cape Breton County Economic Development New Dawn Enterprises
Authority (CBCEDA) North East Highlands Chamber of Commerce
Cape Breton Regional Municipality (CBRM) Northside Entrepreneurial and Resource Centre
Cape Breton Centre for Craft and Design (NEDAC)
Coastal Business Development North Sydney Business Improvement and
Coastal Business Opportunities CBDC Development Association
Destination Cape Breton Nova Scotia Business Inc. (NSBI)
Development Isle Madame Nova Scotia Office of Economic Development
Enterprise Cape Breton Corporation (ECBC) Strait Area Chamber of Commerce
Eskasoni First Nation Strait of Canso Super Port Corporation
Grand Narrows & District Board of Trade Strait-Highlands Regional Development Authority
Human Resources Development Canada Sydney Airport Authority
InRich BDC Limited Sydney and Area Chamber of Commerce
JCI: Cape Breton Sydney Downtown Development Association
Membertou First Nation Sydney Mines Renewal Association
Municipality of the County of Inverness Sydney Ports Corporation
Municipality of the County of Richmond Town of Port Hawkesbury
Municipality of the County of Victoria Unama'ki Economic Benefits Office
Another possible role, suggested at one of the Town Hall meetings and voiced by other individuals consulted,
would be for CBRM to expand the role of its Economic Development office to include the promotion of
business/industrial parks regardless of who owns them. CBCEDA to which CBRM currently provides funding
assistance, as noted above, currently has this role but it could be beneficial to increase the role of the
Manager of Economic Development as well as responsible Planning Department staff to work with CBCEDA,
particularly in assisting business park operators with municipal approvals and increasing the comfort of
potential park occupants that they are welcomed by municipal government. This could be further supported
by increased interaction between CBRM’s Economic Development office and other economic development
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agencies, particularly as a leading member of the suggested economic development council assuming it can
be formed.
3.9.6 The Role of Senior Governments
The final important actors in the governance of CBRM are the senior governments that provide the economic,
social, cultural, and environmental frameworks within which CBRM must function. By law CBRM is not an
independent political entity. In Canada, it is often said that municipalities are “creatures of the provinces.”
Strictly speaking, CBRM and other municipalities are semi-autonomous departments of their Provincial
government empowered or required to provide services specified in Provincial legislation (i.e., the Municipal
Government Act in Nova Scotia). Standards and regulations developed by the Province to ensure minimum
levels of service, protection, and care further constrain and direct municipal units. As can be seen from the
challenges that CBRM has faced and continues to face to meet mandated standards for water treatment,
wastewater treatment, and solid waste management, satisfying such requirements can leave very little
latitude for even modest discretionary expenditure.
The Federal government also plays a substantial role. The government in Ottawa is responsible for a variety
of functions assigned to it through the Constitution Act that are deemed to be better addressed at the national
level because of their scope and scale. This includes most of the key levers of macroeconomic management.
Provincial governments rarely have the capacity to influence Federal economic initiatives.
Federal and Provincial governments, of course, do considerably more than restrict and regulate. They also
provide assistance in varied forms. The Green Municipal Fund itself is an obvious example of this. Both levels
of government, furthermore, provide at least some services regionally. Even small communities often have a
post office with one or more employees of the Federal Crown Corporation Canada Post. Many communities
also have fisheries officers, parks rangers, tourism advisors, economic development professionals, and some
times entire departments or organizations assigned to them. These employees and related operations are
usually highly valued because they bring employment and income to an area, and in some cases provide
services and advice that are beneficial to community residents and businesses. Some obvious examples
within CBRM are the Parks Canada establishment at Louisbourg, the Citizenship and Immigration Canada
Centralized Intake Office in Sydney, and the Canadian Coast Guard College in Sydney.
There is some perception that Cape Breton is favoured in this regard, particularly because it has its own
Federal economic development agency in the form of ECBC and, in the past, also had DEVCO. At the
Provincial level also, the operations of SYSCO gave the impression that Cape Breton was the subject of
special attention. DEVCO has, however, been folded into ECBC and SYSCO’s mandate has been reduced to
the cleanup and redevelopment of the former steel plant and related lands.
Certainly, the proportion of employees engaged in “Public Administration” in the CBRM labour force (6.8 per
cent according to the 2006 Census) is only marginally higher than for Canada as a whole (5.9 per cent). It is,
in fact, significantly less than the norm for the Province of Nova Scotia (8.7 per cent), which is a beneficiary of
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disproportionate Federal employment through the large national defense establishment in Halifax, where 11.4
per cent of the labour force is employed in public administration. These figures are deceptive, in any case,
because of the small size of CBRM’s overall labour force. On a per capita basis, CBRM has only 26.0 public
employees per 1,000 residents versus 29.9 per 1,000 for Canada as a whole and 41.0 per 1,000 for Nova
Scotia as a whole. HRM has 61.0 per 1,000 residents.
The “special attention” that has been given to the communities of the former Industrial Cape Breton, therefore,
is not manifest in a disproportionate public sector role in the region. Special attention, furthermore, has not
been sufficient to preserve local employment levels. Efforts to establish CBU, encourage tourism
development, and stimulate small business creation, although generally positive, have not replaced enormous
industrial job losses. Many Focus Group participants, in fact, expressed opinions that the Province has
curtailed services in the area and that some Provincial government functions should be decentralized to
CBRM to provide employment and enhance the efficiency of service delivery.
3.9.7 Equalization
One aspect of governance that has received considerable attention in CBRM has been the matter of
municipal equalization. Most provinces provide some form of equalization to ensure that all municipalities can
provide a minimum level of services. In Nova Scotia, Section 8 of the Municipal Grants Act provides for
equalization in the form of an unconditional grant. The unconditional transfer is based on a formula that takes
account of the number of dwelling units and the uniform assessment in each municipality as a basis for
assessing needs relative to ability to pay.
Not surprisingly given its relatively large population and constrained revenue sources, CBRM is the largest
recipient of equalization money among Nova Scotia’s municipal units. For 2008-2009 it received $16.7 million
through the program or 52 per cent of the entire $32,050,000 equalization pool. The next largest recipients
were the Town of Amherst at $1.2 million and the Town of New Glasgow at $1.0 million. HRM received no
equalization money nor did the rural municipalities of Chester, Guysborough, East Hants, Kings, and
Lunenburg. Many other municipalities received very modest sums (e.g., Victoria County, which by no means
has a strong tax base, collected $51,098).
The Equalization Fund, nevertheless, has been capped since the 2006-07 fiscal year despite increases in
annual entitlements. The current pool of just over $32 million includes only 54.39 per cent of the total
municipal entitlement calculated by the equalization formula. The portion of the fund for which CBRM is
35
eligible, in fact, stands at approximately $57 million. If the fund was uncapped, it would have yielded just
over $30 million to CBRM in 2008-2009.
35
In addition to entitlements based on uniform assessment, the equalization pool also includes a Foundation Grant
of $1,550,000 comprised of $50,000 allocated to each of the Province’s 31 towns. CBRM does not benefit from
this portion of the pool.
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CBRM has taken the position that not only should it receive this equalization money; it should also receive a
share of the much larger equalization payment made by the Federal government to the Province of Nova
Scotia. This view is based on very similar principles of guaranteeing reasonable levels of service from
province to province. The Municipality filed suit against the Province of Nova Scotia but was turned down by
the Provincial Supreme Court and on subsequent appeal by the Supreme Court of Canada.
Nevertheless, the argument is supported by many CBRM residents and by the group Nova Scotians for
Equalization Fairness (NSEF), with whom Stantec team members met as part of the Strategic Interviewing
Subsection 2.3.1
process described in , above. NSEF representatives make the point, recognized above, that
CBRM and other municipalities are effectively branches of the Provincial government charged with
responsibility for specific services. They note further that the Nova Scotia government has been a consistent
recipient of equalization monies from the Federal government since the inception of the national equalization
36
program in 1957, including $1.571 billion in 2008-2009.
Many community members believe that municipalities, whose expenditures NSEF has calculated traditionally
equal approximately 14 per cent of total spending on municipal and provincial services in Nova Scotia, should
be entitled to a similar proportion of the Federal government’s equalization payment. Certainly, the position
has a logical foundation: “Why should the services delegated to municipalities not be equalized to the national
level in the same manner as those services that the Province has retained as its direct responsibilities?” This
is especially reinforced by the extent to which CBRM’s revenue capacity falls short of service demands,
particularly service requirements such as water and wastewater treatment, and solid waste management that
are heavily influenced by Provincial mandates.
Fourteen per cent of $1.571 billion is roughly $220 million. The NSEF believes this money should be
distributed to Nova Scotia municipal units on the same basis as the established Provincial equalization
formula. According to NSEF, this would yield more than $118 million to CBRM, which marginally exceeds
CBRM’s current annual operating expenditure. While this is a very substantial sum, many members of the
community, CBRM staff, and political representatives argue that the inability of municipal government to
maintain facilities and provide services has contributed to the outflow of population and business that
continually exacerbates the municipal fiscal crisis in CBRM. Regardless of views on this matter, the point
remains that CBRM faces almost insurmountable obstacles to meet its mandated infrastructure requirements
let alone the required upkeep of existing infrastructure, and provision of more specialized programs and
facilities such as parks and recreation facilities that while relative “luxuries” are often determining factors in
residential and business location decisions.
36
See: Nova Scotians for Equalization Fairness, “Residents of 42 Nova Scotia Municipalities Continue to be
Seriously Shortchanged by the Provincial Government’s Unfair Distribution of Federal Equalization Money,”
December 10, 2009, http://nsef.ca/ .
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4.0 VISION AND GOALS
4.1 ICSP Symposium
The ICSP Symposium and Visioning Session were held back-to-back in the same room at the Membertou
Trade and Convention Centre. The Symposium attracted approximately 60 citizens in addition to the speakers
and support staff from Stantec. Stantec set up panels and a table for distributing questionnaires and other
Figure 4.1
materials that were available throughout the Symposium and the subsequent Visioning Session ().
The Symposium was taped by Eastlink for presentation on its Thursday night program Podium TV.
Figure 4.1 ICSP Symposium
Following an introduction by Stantec’s Sydney manager, Willie MacNeill, and a brief summary of current
project status by Project Manager John Heseltine, the ICSP Symposium was moderated by Marty Janowitz,
Stantec’s Vice President of Sustainable Development and a specialist in community vision processes. Mr.
Janowitz began the session with a presentation summarizing current sustainability trends. He then introduced
Table 4.1
four additional speakers as listed in . Each presentation took between 15 and 20 minutes, and was
followed by 10 minutes for questions and answers moderated by Mr. Janowitz. Symposium presentations
finished at 5:15, allowing for a final commentary and roughly half an hour of closing comments and questions.
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Table 4.1 ICSP Symposium Program
TimePresenter Subject
Willie McNeill, Stantec Sydney, John Heseltine, Stantec Welcome/Introductions/Project
2:30 PM
Dartmouth Background
2:45 PM Marty Janowitz, Stantec Dartmouth The Opportunity of Sustainability
3:15 PM Rebekah Cluett-Chan, Stantec Dartmouth The ICSP Process in Nova Scotia
3:45 PM Tom MacDonald, Clean NS Climate Change and Sustainability
Population and Sustainability in
4:15 PM John Heseltine, Stantec Dartmouth
CBRM
4:45 PM Tom McGuire, McGuire Consulting Sustainable Economic Development
5:15 PM Marty Janowitz, Stantec Dartmouth Wrap-up/Summary
The presentations covered a wide range of ICSP and sustainability topics as follows:
Marty Janowitz, The Opportunity of Sustainability – Mr. Janowitz reviewed the meaning of sustainability
and reinforced its prevalence in contemporary thinking about the environment and economic
development.
Rebekah Cluett-Chan, The ICSP Process in Nova Scotia – Ms. Cluett-Chan addressed different
approaches to ICSP preparation provided for under the Nova Scotia MFA noting that CBRM has chosen
to develop a stand-alone ICSP. She outlined the distinction between this type of ICSP and ICSPs that
double as Municipal Planning Strategies, noting that the CBRM ICSP can nevertheless be expected to
include recommended amendments to the MPS.
Tom MacDonald, Climate Change and Sustainability – Mr. MacDonald summarized current evidence of
climate change. He emphasized the need for anticipatory adaptation to expected future climatic
conditions.
John Heseltine, Population and Sustainability in CBRM – Mr. Heseltine discussed his work on projecting
the population of CBRM noting that regardless of even abrupt improvement in the local economy, the
area has lost too many young people for its population to recover quickly. He noted that the continued
aging of CBRM’s population is inevitable in these circumstances and it is prudent for the municipality to
consider the implications of this condition on future demand for public services and related infrastructure.
Tom McGuire, Sustainable Economic Development – Mr. McGuire built on Mr. Heseltine’s presentation.
He noted, in particular, the implications of population loss on the local labour market, including both
gradual improvements in labour force participation and unemployment but also evidence of labour
shortages in key sectors. He also noted the efforts of local economic development agencies such as
ECBC and CBCEDA to revive the Cape Breton economy and the potential of initiatives such as the
dredging of Sydney Harbour, continued tourism development, synergies with post-secondary education
institutions, and the initiative of First Nations to lead economic recovery.
The presentations stimulated considerable discussion and commentary, and hopefully prepared participants
who stayed for the subsequent Visioning Session to consider a variety of issues concerning the development
of their community.
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4.2 Visioning Session
The evening Visioning Session was designed to encourage direct participation. The 40 participants were
divided into groups of 4 or 5 in what is called a “World Café” format to discuss and develop responses to four
questions posed by facilitator Marty Janowitz. Participants were invited to write ideas down on large sticky
notes that were then posted on the walls of the meeting room for the audience and consultants to view and
Figure 4.2
review ().
Figure 4.2 ICSP Visioning Session
The process, which Stantec staff have employed for other ICSP and Community Visioning processes, allowed
participants to view the thoughts of others, recognize commonalities and related concepts, and develop ideas
as a group through the sequence of questions. Participants changed tables before each of the three sets of
questions, which encouraged direct exchange with a variety of other attendees, and circulation of ideas and
perspectives.
The ideas posted in relation to the questions posed were as follows:
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Question 1 a) CBRM is special today because of …
The people / me / CBRM is my home / do more with less / relaxed lifestyle / strong neighbourhoods / diverse
culture / music / scenery / collection of eco-villages / interdependent, cooperative groups / strong arts
community / international contacts / winter climate / recognition of our challenges / affordable housing / safe /
sense of family / compact and accessible environment / grounded social values / natural creativity and
intelligence / our library / you can be a the beach in 20 minutes / short commute / no driving to exercise /
quality of life / accepting of diversity / good place to raise kids / relaxed pace / volunteers / skilled labour / long
history and passion / its my home / CB University / hard-working people / opportunities for young
entrepreneurs / sense of social justice / forested area / wildlife / mix of urban and wilderness areas / at a
crossroads to determine its future / Membertou as an example of initiative / temperate climate / Gaelic
language / CBRM staff / good hospital staff / close to Europe / oceans and beaches / social networks /
sharing culture and heritage / four languages spoken / compact and accessible / fantastic fundraisers / natural
resources / attached by a causeway that we could remove / access to information
Question 1b) We would like to become …
Self-sufficient / empowered / more cohesive / stabilized / sustainable / vibrant and hopeful / part of the global
economy / net contributor to Canada / lowest community unemployment rate in Canada / kids stay in Cape
Breton / exporters of (something other than youth) / funded arts community / better transit / more welcoming
and accepting to immigrants / first class bike lanes / clean community / own container port / culture centre
support the arts / more urban green space / provincial government decentralization / leader in Green Energy /
place of festivals and events / economically independent / higher literacy levels / better educated population /
clean Sydney Harbour / NS Tourism Department in Sydney / longer tourist season / Canada’s 11th province /
international capital of environmental remediation / a community that truly takes pride in its built heritage /
preserve historic sites and properties / vibrant / hopeful economy / respectful of our environment / supportive
of young families / urban gardening / better demographic mix (more youth) / CBU downtown / CBRM in the
black for 10 years / community driven by small enterprises / accessible to people of all income levels / modern
progressive / urban farming and gardening centre / caring society / more populated / business friendly /
mecca for rich retirees / inter-community ferry service / bring back working youth / sewage treatment / more
self-sufficiency (food & industry) / buy local / a community with clean waterways and harbours / a place that
can provide special care for special needs / home of harbour ferry system / fully, meaningfully employed /
centre for sailing / centre for flying / cultural capital / more healthy / UN Biosphere Reserve
Question 2 To get there we will have to surmount …
The Nova Scotia government / mainland perceptions / lack of money / lack of skill base / pessimism / apathy /
resistance to change / lack of community pride among youth / pervasive sadness / negativity / jealousy of
other’s success / youth out-migration / silo mentally / mega-project solutions / strict and inflexible bylaws and
regulations / lack of vision and strategy / lack of typical urban infrastructure / lack of youth employment /
competition among communities / lack of good employment / shrill polarization of debate / depopulation / lack
of young leaders / negativity / decline is services / lack of cultural venues / overall facilities for tourism / lack of
self-esteem / lack of urban density / lack of devolution to neighbourhoods / government and bureaucracy /
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inability to work together / geographic orientation of Councillors / sense of lack / lack of urban rehabilitation /
union attitudes / looking backwards /idea that products produced off-island are superior / cost of travel to and
from / monopoly of a few people / representation by elected officials / lack of investment / lack of money /
bureaucracy and red tape / unresponsive government / drug abuse / media monopoly / dependency culture /
lack of control over the harbour / under valuing of locals / lack of tourist facilities / decline in services / big
solution thinking / competition among communities within CBRM
Question 3 To get there we need to take advantage of …
Tourism / image of Cape Breton / geographic location / quality of life / young leaders / Green Energy
opportunities / educated population / brownfield sites held by DEVCO / Gas Tax money / wind power / Sydney
Harbour / example set by others that have experienced the ICSP process / CBU / land and water resources /
untapped local wisdom / Cape Breton exports / NSCC / strategic investments / common values / power of
cooperation / low costs / progressive attitudes / everything in 1a / vacant lots and buildings / gift of hospitality /
winter recreation opportunities / general shift to local communities / strategic planning / technological
advances / expanding world markets / Section 36.2 of the Canadian Constitution / under-employed workforce
/ government programs / barter economics / local tourism (Cape Bretoners travelling in Cape Breton) / review
of Council structure / opportunities to give your view point / wonderful products produced locally / proactive
policies / local economy trading systems / development of entry points to Cape Breton Island / support of
Cape Breton “alumnae” / people willing to help / local energy / local ideas / creativity / educated population /
funding opportunities / entrepreneurial opportunities / all our crises / spirit of independence / partnerships with
First Nations / rich culture and heritage / land water resources / public libraries / ongoing strategic planning
Based on consideration of the ideas generated, particularly in response to Questions 1 a) and 1 b), the
consultants developed the following draft Vision Statement at the session:
CBRM is a cohesive, creative, and confident community building a diverse economy to
provide a high quality of life to its citizens, a rich experience for its visitors, and a positive
contribution to the world beyond its borders.
Participants discussed the statement and the following alternative wording was provided by one participant,
whose modifications were well received:
CBRM is a self-sufficient, vibrant community building a diverse economy to provide a high
quality of life to its citizens, a rich experience for its visitors, and a positive contribution to the
world beyond its borders.
Participants also suggested that the Vision Statement should be more distinct and should reflect unique
features of CBRM. They suggested that it should more strongly reflect the resolve of the community to deal
with challenges on its own terms. One participant who spoke to us following the session suggested reference
to CBRM’s “strategic location on the Atlantic Ocean” and the commitment to recover from 50 years of
economic challenges.
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Further comments were solicited on the ICSP Blog site, from the ICSP Committee, and from Stantec team
members to further refine the Vision Statement. Stantec team members took all sources into consideration in
finalizing the Vision Statement and deriving related goals.
4.3 Vision and Goals
Based on input from the Visioning Session and further consideration of the priorities expressed by members
of the public Stantec developed following Vision Statement for CBRM:
CBRM is a self-sufficient, vibrant community taking advantage of its Atlantic location, unique
cultural heritage, and pristine environment to meet the challenges of rebuilding a diverse
economy to provide a high quality of life to its citizens, a rich experience for its visitors, and a
positive contribution to the world beyond its borders.
It is important to recognize that this statement not a description of Cape Breton Regional Municipality
today. It is intended to describe the CBRM that residents hope to create over the coming 20 years.
Stantec staff, working from the session outputs, derived the following Goals from this Vision. The Goals were
reviewed with the ICSP Committee and associated statements were subsequently crafted by the consultants:
Self-sufficiency – To increase the role of local products, services, and creativity in the growth of CBRM’s
economy and society.
Vibrancy – To create lively communities offering places and events to engage citizens and visitors in the
rich culture and creativity of CBRM.
Economic Reconstruction – To build a strong, stable economy to provide rewarding employment for
citizens and the wealth required to preserve and sustain CBRM.
Diversification – To pursue available and realistic opportunities to grow a productive and varied economy
in CBRM.
Coastal Location – To take advantage of CBRM’s unique location on the North Atlantic as a source of
wealth, an advantage for export, and an attraction to visitors.
Environment – To preserve and enhance the pristine environment of CBRM as a key element of CBRM’s
economy, an attraction to visitors, and a legacy to future generations.
Cultural Heritage – To cultivate and promote the artistic, musical, and cultural accomplishments of CBRM
residents as a basis for social and economic as well as cultural development.
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–
Quality of LifeTo enhance the economic and social well-being of current and future generations and
communities in CBRM.
–
TourismTo position CBRM as a world class tourist destination by promoting its culture and environment.
–
Global Outlook To share the creativity and productivity of CBRM’s citizens and industries with the world
through the trade of products, services, and ideas.
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Sustainable Development Objectives and Actions
5.0 SUSTAINABLE DEVELOPMENT OBJECTIVES AND ACTIONS
Subsections 5.1 5.5
In this section, through present and describe objectives for each of the five key
sustainability pillars identified by CBRM residents. Objectives were developed based on sustainability areas
and the key ideas (e.g., qualities and assets, issues, and goals) resulting from the first round of consultation.
In addition to developing the Vision Statement through a Visioning Session with the interested public, the
Vision Statement and Goals were reviewed with the ICSP Committee. The Vision Statement and Goals were
then posted on the ICSP Blog Site for review and comment by the public. Key infrastructure projects were
also reviewed and prioritized with CBRM staff and a list of action items was compiled with Stantec team
members who participated in various aspects of consultation. This provided a wide-ranging list of potential
actions for consideration in the development of policy
A synthesized list of action ideas is presented and described in tables associated with each subsection and
therefore linked to the five sustainability pillars identified for this ICSP. Notwithstanding the allocation of
objectives and actions to specific pillars, there is considerable overlap among ICSP initiatives as befits an
“Integrated” plan. Those actions that are expected to be eligible for funding under the Gas Tax Agreement are
*
denoted by an in the following tables and the details of their relationships to funding opportunities are
Section 6.0
outlined in (i.e., Eligible Projects, Sustainable Outcomes and Community Benefits).
5.1 Social
Public input obtained through interviewing Focus Groups, as well as survey and interview work repeatedly
emphasized over-riding concern with the outflow of young people from CBRM and Cape Breton Island. The
desire to increase the proportion of young people in the area was the foundation of objectives related to the
creation of a vibrant cultural life and diversified economy to retain and attract these groups. Residents realize
that the primary driver in this case is economic development that will provide jobs, which is addressed under
Subsection 5.3
dealing with the Economic Pillar, but they are also aware that today’s youth have many
choices and place considerable emphasis on quality of life.
The features of an attractive society are difficult to pin down and no doubt vary from one person to the next;
nevertheless, certain features were regularly repeated. One positive feature that is well established in CBRM
is Cape Breton University (CBU). It is complemented by other educational institutions such as the Nova
Scotia Community College (NSCC) and the Canadian Coast Guard College. At the other end of the spectrum
is the Cape Breton Regional Hospital, which provides vital services to all members of the local community but
particularly to local seniors whose health care needs obviously rise as they continue to age. Other valued
aspects of the community are, frankly, too numerous to mention but certainly include recreation facilities
provided by the Municipality but also encompass the commercial sector and the amenities that accompany it
(e.g., restaurants, bars, hotels).
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Sustainable Development Objectives and Actions
ObjectivesObjectives DescribedActions
1. Liaise with the Nova Scotia Office of
Immigration to encourage the
placement of international
Attract immigrants to
CBRM residents have a strong interest in
immigrants in CBRM.
CBRM and retain them as
increasing immigration to strengthen their
productive members of
2. Create a newcomers/immigrants
community.
the community
network involving business and
community leaders, and immigrants
established in CBRM.
3. Consider the implications of
CBRM’s aging population in the
development and remodeling of
infrastructure, particularly parks and
recreation facilities.
With a rising number of seniors as its
population ages, CBRM seeks to provide
4. Upgrade transit and Handi-trans
Create an “age friendly”
services and amenities to accommodate this
*
programs.
CBRM
group and attract retiring seniors from
5. Facilitate the development of higher
elsewhere.
density housing types suited to
seniors accommodation.
6. Encourage the revival of the
Retirement Cape Breton program.
7. Support local high schools, NSCC,
and CBU in the recruitment of
students from outside CBRM and
their placement in accommodation
and employment.
Stem the outflow of young adults from the
Develop opportunities
region and support initiatives that bring young
8. Improve transit connections to the
that will retain/attract
people into the community from elsewhere in
CBU campus.*
youth
Canada and internationally.
9. Engage young people and youth
organizations in CBRM participation
programs including the
implementation of this ICSP.
10. Identify and prioritize abandoned
housing units based on location,
Abandoned housing units are detrimental to
condition, and suitability for
the appearance of the community, attract
*
occupancy.
vandals and arsonists, and diminish adjacent
11. Work with appropriate organizations
property values. In some instances, they may
Revitalize abandoned
to develop a plan to rehabilitate
also be valuable heritage resources. Many,
housing
priority units for sale or rent to meet
furthermore, are located in well-established
affordable and seniors housing
neighbourhoods where they are serviced such
*
needs.
that their use will have little impact on
municipal costs.
12. Demolish units that are poorly
*
located or in advanced disrepair.
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13. Provide opportunities and
encouragement for the location of
higher density residential
development (i.e., rowhousing
through to high-rise apartment
structures) in Sydney and, possibly,
*
North Sydney.
Both young adults attending community
Intensify residential
college and university, and seniors require
14. Discourage high density
development in the core
higher density accommodation close to
development in remaining
of CBRM
commercial areas and services.
*
communities and urban areas.
15. Encourage CBU to develop
residences or a sub-campus in the
central area of Sydney with the
ultimate goal of relocating the entire
campus to the urban core.
16. Assess the costs and benefits of
If population continues to decline and even if it
existing municipal facilities in
stabilizes, CBRM can derive substantial
Consolidate municipal
consideration of long-term demand
savings through consolidation of operations in
facilities
in face of demographic
fewer, better located, modern buildings.
*
circumstances.
Given the declining requirement for industrial
uses in waterfront areas, waterfronts have
17. Assess the redevelopment potential
been ripe for redevelopment for many years.
of waterfront areas associated with
Walkways and commercial development in
other communities in CBRM, most
waterfront areas can provide valued amenities
notably North Sydney and
for the public and useful Active Transportation
*
Louisbourg.
links. Perhaps most important, they help to
identify communities and attract tourists. The
Redevelop urban
18. Solicit the advice and assistance,
waterfrontsSydney waterfront has already been improved
and, if mutually agreeable, the direct
with an attractive walkway and should be a
involvement of the Provincial
priority for further redevelopment given the
Waterfront Development
potential to improve the experience of cruise
Corporation to plan, improve, and
ship passengers. North Sydney and
market waterfront areas within
Louisbourg also merit particular attention
CBRM.
given their exposure to substantial tourist
traffic.
The prevalence of one-way streets in
19. Assess the value of one-way streets
downtown areas within CBRM is detrimental
*
in commercial areas of CBRM.
to convenient circulation, inhibits commercial
activity, and confuses visitors. In addition, the
20. Enhance streets where available
Improve urban street
generous dimensions of streets in downtown
through the improvement of
networks
Sydney creates excellent opportunities for
pedestrian and bicycle-oriented
improvements to accommodate pedestrians
infrastructure, and the introduction
and bicycles, while enhancing the appearance
*
of planting and landscaping.
of these key streets for residents and visitors.
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ObjectivesObjectives DescribedActions
21. Amend the CBRM MPS to require
dedication of the maximum 10 per
Additional parkland dedication is required to
cent of land in new subdivisions for
provide corridors for trails development.
*
parks and open space.
Require parkland
Where land is not required for parks or trails,
dedication
22. Accept cash-in-lieu and/or in kind
cash-in-lieu can be contributed to a fund to
contributions in place of land where
maintain existing recreation infrastructure.
advantageous to CBRM and its
*
residents.
5.2 Cultural
Along with its unique natural environment, Cape Breton’s distinctive culture provides the foundation of the
region’s image. CBRM and communities on the balance of the island have done an effective job of increasing
awareness of creativity on the island, helped in no small measure by the talent of Cape Bretoners, particularly
musicians, who have gained worldwide attention. Local and senior governments have contributed to this
success through direct advertising and promotion, as well as assistance to local museums, and festivals and
events.
Apart from contributing substantially to the character and identity of the area, the culture of Cape Breton is a
key driver for the development of locally based SMEs. Galleries, crafts producers, local farmers and foresters,
retired industrial workers, and others are the producers of products and generators of ideas that provide the
basis for innumerable small businesses. These businesses, where they produce products for export, raise the
profile of CBRM. Where they provide retail operations and services within CBRM, they are important
components of the local “plant” that attracts tourists and enhances their Cape Breton experience.
ObjectivesObjectives DescribedActions
23. Consult with CBRM residents to
determine their desire to rename their
municipal government.
As the second largest community in Nova
24. In the event of a consensus in favour
Scotia CBRM wishes to assert a distinct
Rename CBRM
of renaming, identify appropriate
identity as an urban place.
alternative names and conduct a
plebiscite to select a preferred name
in conjunction with the next following
municipal election.
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ObjectivesObjectives DescribedActions
25. Develop an organization or council,
preferably encompassing all of Cape
Breton Island, through which cultural
organizations can share ideas and
information, and cooperate to
enhance awareness of and delivery of
With many cultural groups active within
cultural products.
CBRM, participants have indicated a need for
an over-arching structure that would provide
26. Engage young people and youth
Promote cultural and
a medium for representatives to
organizations in CBRM in the
heritage events in CBRM
communicate with each other, coordinate
foregoing organization and, generally,
activities, take advantage of economies of
in the formulation of cultural events in
scale, and avoid duplication of effort.
CBRM.
27. Work with other Cape Breton
municipalities and organizations to
coordinate and present cultural and
heritage events.
28. Continue to designate and preserve
valued heritage and architectural
Protect buildings and sites with notable
Protect and preserve
resources.
heritage and historical associations and/or valued
29. Develop heritage tours to expose
architectural assets architectural character.
residents and tourists to heritage
sites.
30. Preserve access to Bras d’Or
beaches.
Improve access to the Bras d’Or system to
Increase recreational
31. Encourage boating on the Bras d’Or
enhance its value as an amenity for residents
and tourist use of the
through provision of boat access
and attraction for visitors, and facilitate
Bras d’Or Lakes system
points, marinas, and similar facilities
environmentally sensitive use.
to support boat cruises, charters, and
similar activities on the lake system.
32. Encourage the development of eco-
tourism businesses.
Establish CBRM as an eco-tourism
33. Implement environmental protection
Promote adventure
destination offering exposure to its unique
Section 5.4
measures outlined in of
tourism in CBRM
environment and to rich outdoor experiences.
this ICSP to protect environmental
resources that are the foundation of
*
eco-tourism development.
34. Encourage and support the Province
of Nova Scotia in the development of
Build the Fleur-de-lis Construct the proposed roadway to connect
the proposed Fleur-de-lis highway
Trail connection Gabarus to Louisbourg.
*
connection.
5.3 Economic
Economic development is the core concern expressed by the majority of CBRM residents consulted through
the ICSP process. As this process has proceeded, CBRM has received a significant economic boost through
the decision of Xstrata Coal to proceed with development of the Donkin mine, which will add jobs in the region
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and could also enhance the viability of the Port of Sydney. While participants in the ICSP consultations
expressed hope for development of the mine and, especially, the port, most also emphasized smaller scale
developments drawing on local talents and creativity.
Although referenced less often in consultation sessions than Donkin or the port, we should also recognize the
importance placed by CBCEDA’s Strategic Plan on the engagement of women and youth in the workforce.
We also see considerable potential benefit in the energetic development of both First Nations Reserves in
CBRM, which was referenced by several participants in consultation sessions as a positive example for the
balance of the community. While the shift from a resource/industrial-based economy to a service-based
economy can be expected to increase female employment, the greater engagement of women in economic
activity is an essential element of fully deploying the community’s human and intellectual capital. Much the
same can be said for the populations of Membertou and Eskasoni, whose engagement in the development of
the wider community should be pursued.
ObjectivesObjectives DescribedActions
A variety of organizations is engaged in the
35. Develop an organization or council,
encouragement of economic development in
preferably encompassing all of Cape
Cape Breton (e.g., ECBC, RDAs, Cape
Breton Island, through which cultural
Breton Partnership, Chamber of Commerce,
organizations can share ideas and
Coordinate economic Downtown Business Commissions). A
information, and cooperate to
council incorporating representatives of these
development initiatives
encourage economic development.
organizations as well as CBRM Economic
Development staff could provide benefits in
36. Ensure the involvement of CBRM staff
terms of synergies, partnerships, and
in the foregoing Council.
avoidance of duplication.
37. Support the dredging of Sydney
Sydney Harbour should be dredged to a
Harbour.
depth necessary to accommodate the largest
38. Work with the Port of Sydney to
contemporary ocean-going vessels and the
Support the development
ensure effective development of
of Sydney Harbour development of infrastructure should be
supporting road and rail infrastructure,
facilitated to support the re-establishment of
and facilitate the appropriate location
the port as a leading commercial harbour.
of spin-off businesses.
39. Encourage and support The
Provincial government and Sydney
Tar Ponds Agency to connect existing
streets and provide appropriate
bicycle and pedestrian connections
Integrate Tar Ponds and Coke Oven lands
from the North End to Whitney Pier
Develop port-to-port with adjacent areas of Sydney, and enhance
through the Tar Ponds/Coke ovens
the connection from the Port of Sydney to
connections
sites as part of the cleanup and
Sydney Airport.
*
redevelopment of these lands.
40. Maintain and improve the roadway
corridor between the Sydney
harbourfront and Sydney Airport.
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ObjectivesObjectives DescribedActions
41. Develop CBRM as a recognizable
“brand” offering specific products,
skills, and quality, and asserting the
The maintenance of existing businesses in
position of CBRM as Nova Scotia’s
Develop a business
CBRM is a prerequisite of rebuilding the local
second urban centre.
retention strategy
economy.
42. Encourage measures to promote the
purchase of goods and services
*
locally.
43. Encourage CBCEDA/ECBC to
undertake study to identify labour
force gaps and develop appropriate
strategies to retain and attract
required workers.
Despite relatively high unemployment a
variety of gaps are apparent in the local
44. Encourage development of a program
Assess and address
labour force (e.g., contractors, health care
to encourage participation of local
labour force gaps
professionals) or may become apparent (e.g.,
women and youth in the labour force.
mine and port workers).
45. Develop programs to draw back
CBRM natives currently working
elsewhere to fill local labour force
gaps.
46. Continue to streamline development
control processes and provide
assistance to applicants pursuing
municipal permits.
47. Encourage the development of
mentorship programs to engage
senior businesspeople in CBRM to
assist youth and female
entrepreneurs to establish and
manage businesses.
Diversification of CBRM’s economy requires
Encourage locally owned
the cultivation of an entrepreneurial spirit
small to medium-sized
48. Continue to support the maintenance
enterprises in CBRM supported by training and cooperation.
and enhancement of Downtown areas
within CBRM.
49. Develop an Innovation Centre within
CBRM.
50. Develop linkages with NSCC and
CBU to encourage locally based
entrepreneurism among new
graduates and, particularly, immigrant
students.
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ObjectivesObjectives DescribedActions
51. Work with CBU to develop capacity in
contaminated site and minewater
remediation.
52. Encourage development of value
Build on local capacity in Develop knowledge-based opportunities in
added opportunities in the forestry
resource industries.
resource industries
sector.
53. Encourage development of value
added opportunities in the fisheries
sector.
54. Encourage the enhancement of road
connections to Sydney.*
Reinforce the role of Enhance and support retail areas and
55. Encourage the maintenance of
community institutions in the urban core that
CBRM and, particularly,
regional health care and education
serve all of CBRM and the balance of Cape
Sydney as the primary
services in Sydney.
Breton providing for shopping, entertainment,
retail/service area on
56. Continue to support the rehabilitation
Cape Breton Island education, health care, and other needs.
and enhancement of downtown
Sydney.*
57. Complete the connection of the
Waterfront Walkway from the Joan
*
Harriss Pavilion.
58. Continue the Waterfront Walkway
connection northward to connect to
North End neighbourhoods and
southward to connect to Sydney
*
River.
Fully connect the waterfront boardwalk in
59. Acquire necessary lands to provide a
Complete development
Sydney and encourage related development
connection from the southern
of Sydney Waterfront
to maximize its use and attraction.
extension of the Waterfront Walkway
to Wentworth Park.
60. Encourage active land uses abutting
the Waterfront Walkway (i.e.,
retail/entertainment, residential,
recreational).
61. Encourage mobile vendors to locate
on the Waterfront Walkway.
62. Improve access between downtown
*
and the Marine Atlantic terminal.
Develop the North Sydney waterfront as a
Develop North Sydney
63. Investigate the potential to create
Waterfrontcommunity amenity and attraction for tourists.
strategic public connections from
Queen Street to the North Sydney
*
waterfront.
64. Develop a pedestrian pathway from
the edge of the Louisbourg
Develop Louisbourg Develop the Louisbourg waterfront as a
community to the site of Fortress
community amenity and attraction for tourists.
Waterfront
*
Louisbourg.
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ObjectivesObjectives DescribedActions
65. Target one or more departments
whose operations would be amenable
to decentralization to CBRM.
66. Assess the costs and benefits for
CBRM and Nova Scotia of such a
Decentralize Provincial Decentralize one or more departments or
move.
divisions of the Nova Scotia bureaucracy to
government functions to
CBRM.
CBRM
67. Open negotiations with the Province
of Nova Scotia to decentralize
operations whose transfer is
demonstrably feasible and cost-
effective.
68. Develop a “small agriculture”
*
approach to agricultural operations.
69. Protect agricultural operators from
restrictions owing to land use
Increase local food production, encourage
Encourage local
*
conflicts.
the local development of value added
agriculture
agricultural products.
70. Promote value added products based
*
on local production.
71. Limit urban sprawl to protect valued
*
agricultural land.
72. Support First Nations initiatives to
develop their communities within
CBRM by cooperating on
infrastructure and business
development.
Cooperate with and 73. Investigate the potential to trade land
CBRM should work with First Nations groups
in central Sydney for lands owned by
support First Nations
to pursue mutually beneficial approaches to
Membertou to the south of the Sydney
groups resident within
development in CBRM.
CBRM Bypass.
74. Work with First Nations leaders to
reinforce the position of CBRM as the
centre of aboriginal education,
training, and economic development
in Atlantic Canada.
5.4 Environmental
The Nova Scotia MFA makes it clear that enhancement of the environment is the primary objective of Green
Municipal Funding. Although CBRM continues to deal with the clean up of one of the most severely
contaminated sites in Canada, the natural environment is one of the region’s greatest assets. Its extensive
Atlantic coastline, the Mira River, and the Bras d’Or Lakes are all very beautiful and highly valued by visitors
as well as residents. Preservation of the valued qualities of these areas is an essential element of the image
that CBRM seeks to promote and an intrinsic component of its sustainability.
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ObjectivesObjectives DescribedActions
75. Implement recommendations of the
Bras d’Or Lakes Development
*
Guidelines within CBRM.
The Bras d’Or Lakes system is a world
renowned environmental treasure and an
76. Work with Richmond, Inverness, and
Protect the Bras d’Or
important tourist attraction. It is vital to ensure
Victoria Counties, and the Eastern
Lakes system
that the quality of its waters is maintained at
District Planning Commission to
the highest level.
implement recommended standards
for the balance of Cape Breton
*
Island.
77. Continue to develop CBRM’s
*
wastewater treatment strategy.
78. Work with senior governments to
develop a funding model that will
Work with regulatory bodies to respond to the
allow CBRM to address the
Continue Wastewater
current Provincial wastewater treatment
requirements of the Provincial
Treatment Strategy
strategy.
wastewater treatment strategy.
79. Develop wastewater treatment plants
as necessary funds and assistance
*
become available.
Protection of municipal water supply
80. Complete protection strategies for all
Protect municipal water
watersheds is required to protect public
*
water supply watersheds in CBRM.
supply watersheds
health and substantial public investments.
81. Encourage and support Federal and
Provincial regulatory agencies to
Threats to the coastline of CBRM result from
develop a plan to mitigate coastal
a combination of factors largely outside the
sedimentation and flooding caused by
control of CBRM, including structures such
sedimentation of drainage structures.
Address coastal erosion as jetties, bridges, and cultverts, and the
82. Implement recommendations of the
ongoing influence of climate change. Senior
issues
Mira Gut Channel Sedimentation
governments must address these issues
*
Study.
while CBRM concentrates on measures to
prevent potential harm.
83. Encourage the development of a
*
coastal setback regulation by CBRM.
84. Develop wind farm opportunities in
*
CBRM.
85. Explore opportunities for geothermal
With an excellent wind regime and
energy development and encourage
substantial remaining coal resources CBRM
Increase green energy
*
its use where feasible in CBRM.
should pursue opportunities to become a
development
major green energy producer.
86. Investigate potentials of underground
coal gasification and coalbed
*
methane extraction.
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ObjectivesObjectives DescribedActions
87. Assess predicted sea level rise and
Potential sea level rise and associated storm
associated storm surge for coastal
surge is addressed by the Bras d’Or Lakes
*
areas and major watercourses.
Adapt to potential Development Guidelines; however, the threat
88. Adopt appropriate building and
of erosion and inundation needs to be
climate change and its
management regulations to minimize
addressed for Atlantic coastal areas and for
consequences
the exposure of new construction and
other major watercourse, most notably the
infrastructure to anticipated impacts of
Mira.
climate change.
89. Consider all realistic means to
Subject to the recommendations of the
increase the use of transit within
ongoing transit study, consider cost-effective
Improve public transit
CBRM in the context of transit study
services measures that will diminish automobile use
*
recommendations.
and increase transit ridership.
90. Develop all components of the Active
Transportation Plan consistent with
*
the adopted program of CBRM.
91. Incorporate sidewalks, walkways, and
bikeways as a component of street
Implement Active Continue to work toward the implementation
*
upgrading projects as they occur.
Transportation Plan of the Active Transportation Plan.
92. Secure corridors for walkway and
bikeway connections in new
subdivisions through required
*
parkland dedication.
93. Establish WWMDs for existing
communities relying on on-site wells
and/or septic sewage disposal in
*
CBRM.
Wastewater Management Districts are
94. Require the establishment of WWMDs
required to manage and assign costs to
for all new developments relying on
Encourage the established areas and new developments
on-site wells and/or septic sewage
relying on on-site wells and/or septic sewage
establishment of
*
disposal in CBRM.
disposal. WWMDs are also an effective
Wastewater
Management Districts mechanism to internalize the costs of
95. Require the development of financial
managing such areas, including the risks of
plans for all WMMDs identifying all
system failure.
capital, operating, and potential
replacement costs, and establishing a
charging regime for recovering these
*
costs.
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ObjectivesObjectives DescribedActions
96. Implement a Clear Bag program to
respond to Provincial diversion
requirements as well as to benefit
*
from the additional diversion credits.
97. Take advantage of available capped
Sydney Landfill area to expand and
CBRM should continue its efforts to reduce
extend the life of CBRM’s C&D
solid waste streams and, particularly, to
*
landfill.
Continue to address the divert waste from landfill in Guysborough, to
98. Expand the CBRM Compost Facility
reduce municipal costs as well the
reduction of Solid Waste
to full capacity, as demand increases,
environmental impact of transportation and
and as new or enhanced waste
storage in landfill.
*
streams become available.
99. Work with private sector and
regulatory agencies to develop
alternative uses for various waste
streams so as to limit the amount of
*
waste transported outside of CBRM.
5.5 Governance
Through amalgamation and fiscal discipline, CBRM has met significant financial challenges over the past 15
years. With continued challenges to generate revenue to maintain infrastructure and, in some cases, bring it
to mandated contemporary standards, the Municipality must adapt further. Covering its revenue shortfall is of
the utmost importance. While measures recommended above such as strengthened development control can
reduce costs and provide some supplementary revenue streams, continued restraint is required. An infusion
of assistance is also essential for CBRM to meet its obligations let alone to provide amenities taken for
granted in many other communities.
ObjectivesObjectives DescribedActions
100. Work with the Union of Nova Scotia
Municipalities (UNSM), other
municipal governments in Nova
Services assigned to municipal governments
Scotia, and supportive public
by the Province should be provided at levels
organizations to increase awareness
Work with the Province
reasonably comparable to other local
of the equalization issue in terms of
of Nova Scotia to
governments across Canada. To accomplish
removing the current equalization cap
develop a fairer system
this, it is reasonable that municipal
and sharing in the Federal
of municipal equalization
governments should share in the Federal
equalization allocation.
equalization contribution to Nova Scotia.
101. With UNSM, pursue realistic avenues
to enhance and augment municipal
equalization support in Nova Scotia.
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ObjectivesObjectives DescribedActions
102. Assess the size of CBRM Council in
consultation with the interested public.
A more dynamic municipal government is
Assess the size and
sought that will place the overall development
103. Assess strategic options to increase
structure of CBRM
of CBRM ahead of the interests of local
consideration of CBRM-wide
Council
communities.
concerns in municipal decision-
making.
104. Enhance the CBRM Web site to
provide ongoing capability for
members of the public to comment on
Residents have expressed a desire for
Council meetings and municipal
Enhance communication stronger ongoing input to municipal
initiatives, and to provide their ideas
between the public and governance. Email and blogging
on ways to improve municipal
municipal government in environments provide inexpensive
services.
mechanisms to do so and should be provided
CBRM
to facilitate public input.
105. Employ Web polls and surveys
periodically to obtain public input on
questions of municipal interest.
106. Continue to apply methods of
infrastructure prioritization already in
To maximize the benefits of capital
Plan infrastructure
place in CBRM.
investments and minimize costs,
improvements to ensure
infrastructure projects need to be prioritized
107. Refine the foregoing methods to take
coordinated renewal
and coordinated.
account of potential consolidation of
communities.
A Regional Development Boundary will limit
the extent of service networks, support the
108. Define a Regional Development
Establish Regional consolidation of municipally-provided
Boundary encompassing currently
facilities, and prevent the infringement of
Development Boundary
*
serviced areas of the urban core.
agricultural and resource lands by
urbanization.
Promote more cost effective, compact
109. Implement Development Charges to
development in existing serviced areas
recover the cost of infrastructure
through various means including the
Institute Development
construction required by new
Charges for new imposition of development charges on
development taking into account
development inefficient development that leads to
impacts on water, sewer, storm,
decreased population densities and
*
transportation, and transit provisions.
increased overall cost for the taxpayer
110. Institute green municipal procurement
Evaluate municipal purchasing options using
*
policy.
“Green” municipal a triple bottom line approach taking into
111. Increase environmental awareness of
operations account social and environmental, as well as
municipal staff through promotion and
financial considerations.
*
training.
112. Work with community groups and the
Increase community access to schools, fire
Cape Breton-Victoria Regional School
Optimize use of public halls, and similar facilities to ensure their
Board to develop arrangements to
ongoing sustainability and to avoid
facilities
facilitate broader public access to
expenditure on redundant municipal facilities.
community facilities.
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ObjectivesObjectives DescribedActions
Although direct issues in the provision of
113. Investigate the feasibility of ongoing
municipal services or the pursuit of strictly
senior level consultation among
municipal goals are very limited in Cape
Mayors and CAOs concerning
Breton, many of the central issues of
Work with other Cape
common challenges and aspirations.
economic development are island-wide.
Breton Island municipal
CBRM needs to work with Richmond,
114. Participate positively in initiatives to
units
Inverness, and Victoria Counties, as well as
coordinate the presentation and
the Town of Port Hawkesbury to address
marketing of Cape Breton Island as a
regional transportation challenges, tourism
whole.
development, and environmental protection.
115. Establish ICSP Implementation
Committee.
116. Develop Community ICSP
Develop municipal
The ICSP, as outlined in Section 10, below,
Engagement Plan.
structures and
must be implemented by Regional Council in
procedures to implement
117. Develop and maintain a Municipal
consultation with the public.
this ICSP
Indicators Program.
118. Review ICSP Actions annually leading
to comprehensive five-year review.
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Eligible Projects, Sustainable Outcomes and Community Benefits
6.0 ELIGIBLE PROJECTS, SUSTAINABLE OUTCOMES AND
COMMUNITY BENEFITS
Section 5.0
The tables in foregoing identify actions assumed to be eligible for funding under the Gas Tax
Agreement with a . These actions are presented in greater detail in this section. Projects may be considered
*
in either of the following two categories:
Capacity Building: The process of building the potential for a municipality to collaborate and form
relationships with experts, professionals, and other organizations to develop skills that enable it to
develop and implement an Integrated Community Sustainability Plan.
Capital Infrastructure Investments: The basic facilities, services, and installations needed for the
functioning of the community, such as transportation systems, bridges, roads, water and wastewater
systems, etc.
It is notable that buildings are not specifically referenced as eligible as capital infrastructure investments.
Consultation with Service Nova Scotia staff has confirmed that building projects will not be funded nor will
components of buildings, even components that may enhance sustainability.
Criteria in the Municipal Funding Agreement also stipulate that infrastructure projects must provide a range of
benefits to a municipality. In addition, infrastructure projects should link to broader sustainable outcomes (i.e.,
cleaner air, cleaner water, and reduced greenhouse gas emissions).
The following table explains how each proposed eligible project will contribute to the sustainable outcomes
outlined in the MFA as well as other benefits to the municipality (e.g., enhanced economic opportunities). In
Section 5.0
addition, the tables also identify the corresponding action number provided in . These are listed in
the column to the left for ease in referencing.
Benefits to the Community
Action
Social
Provide alternatives to single occupant vehicle
transportation. Enhanced mobility for special needs
4. Upgrade transit and Handi-trans programs.*
groups in the community (e.g., adolescents, seniors, the
disabled).
Enhance mobility for university students, who are a key
8. Improve transit connections to the CBU campus.*
transit user group.
Identify and prioritize abandoned housing units
Re-use sound housing stock, particularly where it
10. based on location, condition, and suitability for
reinforces the viability of established, serviced
occupancy.*
neighbourhoods, supplementing land use actions
intended to concentrate development, avoiding the
Work with appropriate organizations to develop a
energy and resource impacts of replacement
11. plan to rehabilitate priority units for sale or rent to
*
construction and the waste management requirements
meet affordable and seniors housing needs.
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Eligible Projects, Sustainable Outcomes and Community Benefits
Benefits to the Community
Action
Demolish units that are poorly located or in of demolition.
12.
advanced disrepair.*
Provide opportunities and encouragement for the
Provide housing options close to services and amenities
location of higher density residential development
13. reduces transportation needs while supplementing land
(i.e., rowhousing through to high-rise apartment
use actions intended to concentrate development.
structures) in Sydney and, possibly, North Sydney.*
Improve tourist experience and community amenity in
Assess the redevelopment potential of waterfront waterfront areas incorporating where appropriate
17. areas associated with other communities in CBRM, pedestrian improvements that supplement Active
Actions 90-
Transportation objectives associated with
most notably North Sydney.*
92.
Assess the value of one-way streets throughout
19.
CBRM.*
Reduce consumption of fossil fuels and associated
Enhance streets where available through the
generation of greenhouse gases by facilitating more
improvement of pedestrian and bicycle-oriented
direct vehicle routing.
20.
infrastructure, and the introduction of planting and
landscaping.*
Cultural
Implement environmental protection measures
Section 5.4
outlined in of this ICSP to protect
Environmental Actions
See in this table, below.
33.
environmental resources that are the foundation of
eco-tourism development.*
Economic
Encourage and support The Provincial government
and Sydney Tar Ponds Agency to connect existing
Improved connections across Tar Ponds/Coke Ovens
streets and provide appropriate bicycle and
sites will decrease travel distance, reducing required
pedestrian connections from the North End to
39.
travel, consumption of fossil fuels, and associated
Whitney Pier through the Tar Ponds/Coke ovens
generation of greenhouse gases.
sites as part of the cleanup and redevelopment of
*
these lands.
Encourage measures to promote the purchase of Reduce transportation costs and associated generation
42.
*
goods and services locally.
of greenhouse gases.
Complete the connection of Waterfront Walkway
57.
Improve tourist experience for cruise ship passengers
from the Joan Harriss Pavilion.*
and others while enhancing community amenity and
Continue the Waterfront Walkway connection
supplementing Active Transportation objectives
58. northward to connect to North End neighbourhoods
Actions 90-92.
associated with
*
and southward to connect to Sydney River.
Improve access between downtown and the Marine
62.
Improve tourist experience for Marine Atlantic
Atlantic terminal.*
passengers and others while enhancing community
Investigate the potential to create strategic public
amenity and supplementing Active Transportation
63. connections from Queen Street to the North
Actions 90-92.
objectives associated with
Sydney waterfront.*
Improve tourist experience for cruise ship passengers
Develop a pedestrian pathway from the edge of the
and others while enhancing community amenity and
64. Louisbourg community to the site of Fortress
supplementing Active Transportation objectives
*
Louisbourg.
Actions 90-92.
associated with
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Eligible Projects, Sustainable Outcomes and Community Benefits
Benefits to the Community
Action
Develop a "small agriculture" approach to
68.
agricultural operations.*
Protect agricultural operators from restrictions
69.
Protect local agriculture to support local consumption
owing to land use conflicts.*
and reduce food transportation costs and associated
Promote value added products based on local
generation of greenhouse gases.
70.
production.*
Limit urban sprawl to protect valued agricultural
71.
*
land.
Environmental
Implement recommendations of the Bras d'Or
75.
Preserve and enhance water quality by comprehensively
Lakes Development Guidelines within CBRM.*
reducing the risk of transport/release of sediments and
Work with Richmond, Inverness, and Victoria
hazardous materials into the lake system, mitigate the
Counties, and the Eastern District Planning
risks of climate change through provisions for adaptation
76.
Commission to implement recommended
of construction.
standards for the balance of Cape Breton Island.*
Continue to develop CBRM’s wastewater treatment
77.
*
strategy.
Enhance water quality through pollution reduction.
Develop wastewater treatment plants as necessary
79.
funds and assistance become available.*
Complete protection strategies for all water supply Preserve and enhance water quality by reducing risk of
80.
watersheds in CBRM.*contamination from human activities.
Implement recommendations of the Mira Gut Reduce sedimentation in Mira Gut Channel restoring
82.
Channel Sedimentation Study.*natural flow and improving access for boaters.
Protect public infrastructure and private property by
Encourage the development of a coastal setback
83.
reducing exposure to the impacts or erosion and
*
regulation by CBRM.
potential inundation.
84. Develop wind farm opportunities in CBRM.*
Explore opportunities for geothermal energy
85. development and encourage its use where feasible Substitute alternative energy sources for fossil fuels
in CBRM.*reducing the generation of greenhouse gases.
Investigate potentials of underground coal
86.
gasification and coalbed methane extraction.*
Assess predicted sea level rise and associated
Mitigate the risks of climate change through provisions
87. storm surge for coastal areas and major
for adaptation of construction.
watercourses.*
Provide alternatives to single occupant vehicle
Consider all realistic means to increase the use of
transportation. Enhanced mobility for special needs
89. transit within CBRM in the context of transit study
groups in the community (e.g., adolescents, seniors, the
recommendations.*
disabled).
Develop all components of the Active
90. Transportation Plan consistent with the adopted
Reduce reliance on vehicular transportation, thereby
program of CBRM.*
reducing air pollution and GHG emissions while
Incorporate sidewalks, walkways, and bikeways as
improving community health and welfare.
91. a component of street upgrading projects as they
occur.*
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Cape Breton Regional Municipality Integrated Community Sustainability Plan
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Benefits to the Community
Action
Secure corridors for walkway and bikeway
92. connections in new subdivisions through required
parkland dedication.*
Establish WWMDs for existing communities relying
93. on on-site wells and/or septic sewage disposal in
CBRM.*
Create mechanisms/incentives to maintain on-site
Require the establishment of WWMDs for all new systems, thereby reducing potential contamination of
94. developments relying on on-site wells and/or septic water sources. Encourage rational settlement pattern to
sewage disposal in CBRM.*reduce transportation requirement, thereby reducing air
pollution and GHG emissions while improving
Require the development of financial plans for all
community health and welfare.
WMMDs identifying all capital, operating, and
95.
potential replacement costs, and charging regime
for recovering these costs.*
Implement a Clear Bag program to respond to
96. Provincial diversion requirements as well as to
benefit from the additional diversion credits.*
Take advantage of available capped Sydney
97. Landfill area to expand and extend the life of
CBRM’s C&D landfill.*
Diversion of solid waste from landfilling will reduce the
GHG emissions associated with their transport to
Expand the CBRM Compost Facility to full
Guysborough County.
88. capacity, as demand increases, and as new or
enhanced waste streams become available.*
Work with private sector and regulatory agencies to
develop alternative uses for various waste streams
99.
so as to limit the amount of waste transported
outside of CBRM.*
Governance
Reduce municipal expenditures associated with
Define a Regional Development Boundary
operation and maintenance of an expanded service
108. encompassing currently serviced areas of the
network, and reduce related public and private costs
*
urban core.
associated with urban sprawl.
Implement Development Charges to recover the
cost of infrastructure construction required by new Further discourage the expansion of service networks
109. development taking into account impacts on water, and minimize the exposure of the municipality to
sewer, storm, transportation, and transit operations, maintenance, and remedial costs.
*
provisions.
110. Institute green municipal procurement policy.*
Reduce municipal carbon footprint and continuously
assess opportunities to enhance the sustainability of
Increase environmental awareness of municipal
111.
CBRM operations.
staff through promotion and training.*
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Cape Breton Regional Municipality Integrated Community Sustainability Plan
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Partnerships and Collaborations
7.0 PARTNERSHIPS AND COLLABORATIONS
Amalgamation has minimized the need for inter-municipal partnerships that are required to organize the
effective delivery of services in other areas of Nova Scotia where towns interact with rural municipalities
and/or with other towns. The extensive area of CBRM also reduces the potential for conflict and the need for
collaboration, not to mention that its land-based borders with Victoria and Richmond Counties are relatively
confined and located in lightly populated areas.
The requirement for inter-municipal cooperation largely comes to the fore with respect to the Bras d’Or Lakes
system. While the lakes are a key reason for CBRM’s physical separation from its municipal neighbours, their
waters are vulnerable to actions undertaken anywhere on their shores. As discussed above, the protection of
the Bras d’Or system therefore requires the commitment of all municipal units fronting on the lakes (i.e., the
Counties of Inverness, Richmond, and Victoria) as well as CBRM. All municipal units on the Bras d’Or have,
indeed, expressed support for the protection of the Bras d’Or Lakes and contributed to the preparation of the
Bras d’Or Development Guidelines, although they do not appear to be moving strongly toward their
implementation. CBRM, of course, has also not implemented the recommendations of the report.
Participants in the ICSP process have noted that other municipal units on Cape Breton Island and their
residents often regard CBRM as a rival. In many areas of economic development, however, their interests are
aligned, with tourism being the leading example. Notwithstanding the outstanding attractions and unique
character of each municipal unit on the island, Cape Breton Island in the eyes of most tourists is a single
product. As such, it needs to be marketed as a single entity, which indeed it is.
While the integration of all municipal jurisdictions on Cape Breton is less direct for sectors other than tourism,
the size of the island’s population demands cooperation. Certainly there is little downside for CBRM, as the
largest of Cape Breton’s five municipal units, to support the development of other areas of the island. Many
urban centres that have successfully recovered from the kind of industrial decline that has been experienced
by the core communities of CBRM have done so by repositioning themselves as regional service centres
Subsection 1.4
(e.g., Pittsburgh, Pennsylvania, and Moncton, New Brunswick, as discussed in ). The growth
of Cape Breton Island as a whole is consequently integral to the benefits to be derived from a role as the
island’s primary retail and service centre.
There are, in fact, many players involved in the development of the island and CBRM. The municipality is only
one and its direct role is relatively minor as its primary contribution to economic development is funding
provided to CBCEDA. The growth of CBRM’s economy and the enhancement of its infrastructure also
depends heavily on senior governments. The Federal and Provincial governments are effective partners in
this ICSP. ECBC, NSBI, CBCEDA, and other Federal and Provincial agencies also play a significant role in
strategic planning and the provision of assistance to businesses. They, furthermore, interact with a variety of
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Partnerships and Collaborations
not for profit and private organizations the leading examples of which are the Cape Breton Partnership and
the Sydney and Area Chamber of Commerce. The ICSP does not advocate significant changes to these roles
but it does urge a greater degree of awareness and cooperation, including increased and positive
participation from CBRM.
Action Partner(s)Comments
Social
The Office of Immigration works
Liaise with the Nova Scotia Office with the Federal Government to
of Immigration to encourage the Province of Nova Scotia Office of promote immigration to Nova
1.
placement of international Immigration Scotia and can direct potential
immigrants in CBRM. immigrants to areas and sectors of
need.
Create a newcomers/immigrants
network involving business and Cape Breton Economic Development
2.
community leaders, and Agency (CBCEDA)
immigrants established in CBRM.
Retirement Cape Breton maintains
a presence on the CBCEDA Web
Encourage the revival of the
6.CBCEDA site. The program, which appears
Retirement Cape Breton program.
to have achieved some success,
should be reasserted.
Support local high schools, NSCC,
and CBU in the recruitment of
Secondary and post-secondary
7.students from outside CBRM and
education institutions
their placement in accommodation
and employment.
Improve transit connections to the
8.Cape Breton University (CBU)
*
CBU campus.
Identify and prioritize abandoned
housing units based on location,
10.
condition, and suitability for
*
occupancy.
Work with appropriate CBRM is already supporting AHRP
Affordable Housing Renovation
organizations to develop a plan to through assistance to prepare a
Partnership (AHRP)
11. rehabilitate priority units for sale or Business Plan for the organization.
rent to meet affordable and seniors
*
housing needs.
Demolish units that are poorly
12.
*
located or in advanced disrepair.
Solicit the advice and assistance,
and, if mutually agreeable, the
direct involvement of the Provincial
Waterfront Development
The assistance of the Waterfront
Corporation to plan, improve, and
18. Waterfront Development Corporation Development Corporation will have
market waterfront areas within
to be solicited by CBRM.
CBRM.
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Cape Breton Regional Municipality Integrated Community Sustainability Plan
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Partnerships and Collaborations
Action Partner(s)Comments
Cultural
Consult with CBRM residents to The renaming of a municipality
23. determine their desire to rename separate from its reorganization –
their municipal government. as when regional municipalities
were formed in Cape Breton,
Halifax, and Queens – is
In the event of a consensus in
Service Nova Scotia and Municipal unprecedented under the current
favour of renaming, identify
Relations legislation. The steps to undertake
appropriate alternative names and
such an initiative, if deemed
24. conduct a plebiscite to select a
desirable, will have to be defined in
preferred name in conjunction with
consultation with the Provincial
the next following municipal
Department of Service Nova Scotia
election.
and Municipal Relations.
Develop an organization or council,
preferably encompassing all of
Cape Breton Island, through which
ECBC, CBCEDA, Cape Breton
25. cultural organizations can share
municipalities, cultural organizations
ideas and information, and
cooperate to enhance awareness
of and delivery of cultural products.
Work with other Cape Breton
municipalities and organizations to ECBC, CBCEDA, Cape Breton
27.
coordinate and present cultural and municipalities
heritage events.
The effective development and
Develop heritage tours to expose
marketing of CBRM’s cultural,
ECBC, CBCEDA, Cape Breton
29. residents and tourists to heritage
heritage, and tourism products
municipalities
sites.
must be coordinated island-wide.
Preserve access to Bras d’Or ECBC, CBCEDA, Cape Breton
30.
beaches. municipalities
Encourage boating on the Bras
d’Or through provision of boat
access points, marinas, and similar ECBC, CBCEDA, Cape Breton
31.
facilities to support boat cruises, municipalities
charters, and similar activities on
the lake system.
Encourage the development of ECBC, CBCEDA, Cape Breton
32.
eco-tourism businesses. municipalities
Implement environmental
protection measures outlined in Cape Breton municipalities, Eskasoni
Multiple players must cooperate to
Section 5.4
of this ICSP to protect First Nation, Bras d’Or Stewardship
33. ensure the ongoing integrity of the
environmental resources that are Society, and Unama’ki Institute of
Bras d’Or system.
the foundation of eco-tourism Natural Resources
*
development.
The Province must make the Fleur-
de-lis highway a priority for its
Encourage and support the
secondary road program. Parks
Nova Scotia Transportation and
Province of Nova Scotia in the
Canada must also be engaged to
34. Infrastructure Renewal and Parks
development of the proposed
build the greater portion of the
Canada
*
Fleur-de-lis highway connection.
route that is on their land.
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Cape Breton Regional Municipality Integrated Community Sustainability Plan
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Partnerships and Collaborations
Action Partner(s)Comments
Economic
Develop an organization or council,
preferably encompassing all of
Cape Breton Island, through which
Cape Breton municipalities and
Economic development like
35. cultural organizations can share
economic development agencies
cultural, heritage, and tourism
ideas and information, and
development, must be coordinated
cooperate to encourage economic
island-wide.
development.
Ensure the involvement of CBRM Cape Breton municipalities and
36.
staff in the foregoing Council. economic development agencies
Support the dredging of Sydney
37.
Harbour.
Sydney Marine Group has recently
Work with the Port of Sydney to
made a presentation to CBRM
ensure effective development of
Port of Sydney Council, which has confirmed the
supporting road and rail
support of the Municipality for port
38.
infrastructure, and facilitate the
development initiatives.
appropriate location of spin-off
businesses.
Develop CBRM as a recognizable The representation of CBRM as a
“brand” offering specific products, CBCEDA, Cape Breton Partnership, brand inherently requires the
41. skills, and quality, and asserting the other interested economic cooperation of all players engaged
position of CBRM as Nova Scotia’s development agencies in business and economic
second urban centre. development.
Encourage measures to promote CBCEDA, Cape Breton Partnership,
42. the purchase of goods and services other interested economic
*
locally.
development agencies
Encourage CBCEDA/ECBC to
undertake study to identify labour
43. force gaps and develop appropriate ECBC and/or CBCEDA
strategies to retain and attract
required workers.
CBRM is at most a supporting
Encourage development of a
player in the implementation of
program to encourage participation CBCEDA, other interested
44.
most economic development
of local women and youth in the economic development agencies
initiatives. As the proposed
labour force.
partnerships suggest, these
Develop program to draw back
proposals require the commitment
CBRM natives currently working CBCEDA, other interested
of dedicated economic
45.
elsewhere to fill local labour force economic development agencies
development agencies frequently
gaps.
working together with local
Encourage the development of educational institutions.
mentorship programs to engage
senior businesspeople in CBRM to CBCEDA, other interested
47.
assist youth and female economic development agencies
entrepreneurs to establish and
manage businesses.
Continue to support the
48. maintenance and enhancement of Downtown Sydney, CBCEDA
Downtown areas within CBRM.
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Cape Breton Regional Municipality Integrated Community Sustainability Plan
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Partnerships and Collaborations
Action Partner(s)Comments
Develop an Innovation Centre within
49.
ECBC, CBCEDA, CBU
CBRM.
Develop linkages with NSCC and
CBU to encourage locally based
50. entrepreneurism among new CBU, NSCC
graduates and, particularly,
immigrant students.
Work with CBU to develop capacity
51. in contaminated site and minewater CBU
remediation.
Encourage development of value
52. added opportunities in the forestry ECBC, CBCEDA
sector.
Encourage development of value
53. added opportunities in the fisheries ECBC, CBCEDA
sector.
Develop a pedestrian pathway from
the edge of the Louisbourg A portion of the pathway will be on
64. Parks Canada
community to the site of Fortress Federally owned land.
Louisbourg.
Target one or more departments
whose operations would be
65.
amenable to decentralization to
CBRM.
Assess the costs and benefits for
Any decision to relocate staff will
66. CBRM and Nova Scotia of such a
Province of Nova Scotia be at the discretion of the Province
move.
of Nova Scotia.
Open negotiations with the Province
of Nova Scotia to decentralize
67. operations whose transfer is
demonstrably feasible and cost-
effective.
Develop a “small agriculture”
68.
*
approach to agricultural operations.
Promote value added products
70.
*
based on local production.
Support First Nations initiatives to
develop their communities within CBRM is already assisting
72. CBRM by cooperating on Membertou, Eskasoni Membertou with the development
infrastructure and business of the Membertou Connector.
development.
Engaging the energy of the
Investigate the potential to trade
Membertou First Nation in the
land in central Sydney for lands
73. Membertoudevelopment of central Sydney will
owned by Membertou to the south
be beneficial to objectives for both
of the Sydney Bypass.
the communities.
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Cape Breton Regional Municipality Integrated Community Sustainability Plan
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Partnerships and Collaborations
Action Partner(s)Comments
Work with First Nations leaders to
reinforce the position of CBRM as
74. the centre of aboriginal education, Membertou, Eskasoni
training, and economic development
in Atlantic Canada.
Environmental
Work with Richmond, Inverness,
Cape Breton municipalities, Eastern
and Victoria Counties, and the
District Planning Commission, Multiple players must cooperate to
Eastern District Planning
76. Eskasoni First Nation, Bras d’Or ensure the ongoing integrity of the
Commission to implement
Stewardship Society, and Unama’ki Bras d’Or system.
recommended standards for the
Institute of Natural Resources
*
balance of Cape Breton Island.
The availability of funding support
Develop wastewater treatment
is critical to implementation of
79. plants as necessary funds and Nova Scotia Environment
CBRM wastewater treatment
*
assistance become available.
plans.
Nova Scotia Environment is
Complete protection strategies for
already working with CBRM on
80. all water supply watersheds in Nova Scotia Environment
several water supply watershed
*
CBRM.
protection plans.
Develop wind farm opportunities in Nova Scotia Energy, Nova Scotia
84.
*
CBRM.Power
Explore opportunities for geothermal
Nova Scotia Energy, Nova Scotia
85. energy development and encourage
Power
*
its use where feasible in CBRM.
Investigate potentials of
Nova Scotia Energy, Nova Scotia
86. underground coal gasification and
Power
*
coalbed methane extraction.
Assess predicted sea level rise and
87. associated storm surge for coastal Atlantic Coastal Action Plan
*
areas and major watercourses.
Various government agencies,
economic development
organizations, and community
groups including CBCEDA, Nova
Scotia Lands, Cape Breton
University, ECBC, the Health
Authority, Cape Breton-Victoria
Regional School Board, Velo Cape
Develop all components of the
Engagement of appropriate
Breton, Atlantic Coastal Action Plan,
Active Transportation Plan
90. partners on a project by project
Whitney Pier Historical Society, the
consistent with the adopted program
basis.
Greenlink Society
of CBRM.*
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Cape Breton Regional Municipality Integrated Community Sustainability Plan
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Partnerships and Collaborations
Action Partner(s)Comments
Governance
Work with the Union of Nova Scotia
Municipalities (UNSM), other
municipal governments in Nova
CBRM must win the support of the
Scotia, and supportive public
public and other Nova Scotia
100. organizations to increase Union of Nova Scotia Municipalities
municipal units to persuade the
awareness of the equalization issue
Province of Nova Scotia to remove
in terms of removing the current
the current cap on the Provincial
equalization cap and sharing in the
equalization pool as well as to
Federal equalization allocation.
distribute a fair share of Federal
equalization monies to local
With UNSM, pursue realistic
governments.
avenues to enhance and augment
101. Union of Nova Scotia Municipalities
municipal equalization support in
Nova Scotia.
Work with community groups and
Arranging coordinated use of
the Cape Breton-Victoria Regional
facilities invariably faces
School Board to develop Cape Breton-Victoria Regional
112.
challenges with insurance and
arrangements to facilitate broader School Board, community groups
labour issues that will have to be
public access to community
addressed.
*
facilities.
Investigate the feasibility of ongoing
senior level consultation among
113. Mayors and CAOs concerning Cape Breton municipalities
common challenges and
aspirations.
Participate positively in initiatives to
coordinate the presentation and Cape Breton municipalities and
114.
marketing of Cape Breton Island as economic development agencies
a whole.
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Cape Breton Regional Municipality Integrated Community Sustainability Plan
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Potential Municipal Planning Strategy Changes
8.0 POTENTIAL MUNICIPAL PLANNING STRATEGY CHANGES
CBRM’s Planning Department prepared the Municipality’s first comprehensive Municipal Planning Strategy or
MPS in 2004. This ICSP was developed with an awareness of the MPS. The consultants worked closely with
members of the Planning Department throughout the ICSP process and reviewed all reports prepared during
the process including all drafts of this final ICSP.
The ICSP does not conflict with the MPS on any significant matter. As the following table illustrates, in fact, it
reinforces many MPS policies. In some areas, on the other hand, the MPS does not reference issues that are
recognized as highly significant in this ICSP. Most notable among these are initiatives related to economic
development.
The MPS acknowledges that the role of the municipality in economic development is limited, as this ICSP
Subsection 3.9.5
does in , above. A major thrust of the ICSP reflecting input from the consultation process is
to develop the CBRM economy in order to preserve local society and culture. Proposed MPS changes adapt
to this, particularly with respect to proposed Actions 1 and 2. We acknowledge, however, that the scope of
these amendments is limited. CBRM Council may, in fact, wish to consider the development of an
economic/demographic strategy within the MPS that will not so much direct the actions of the Municipality,
given its limited powers, as it will provide a foundation for the Municipality’s interaction with economic
development agencies, other municipal units on Cape Breton Island, and senior governments.
The second major thrust of the ICSP that is pertinent to the MPS is the control of land development. In this
regard, the ICSP aligns very closely with the MPS in an area in which the Municipality has a well-established
role. The ICSP strongly reinforces policies of the MPS that envision the concentration of population in denser
development in Sydney; the accommodation of the growing population of seniors; and limitation of
development that requires or will potentially require the extension of water and sewer networks. These
initiatives are intended to conserve financial resources, protect the rural character of CBRM and its
environment, and infuse the urban core to make it a more vibrant, attractive place to live and visit.
The following table, therefore, lists ICSP goals that reinforce MPS policies and others that could be more
strongly supported by the MPS. For certain ICSP goals, amendments to the ICSP are suggested. The
adoption of such changes does not follow directly from this ICSP or even its approval by Regional Council.
Any amendment to the MPS must meet the statutory requirements of the Municipal Government Act,
particularly, the requirement for specific public consultation and a public hearing before approval by Regional
Council. Most will also require amendment of the Land Use Bylaw and/or other municipal bylaws to be fully
implemented.
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Cape Breton Regional Municipality Integrated Community Sustainability Plan
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Potential Municipal Planning Strategy Changes
Amendments are also severable. Some may have immediate value with respect to high priority actions,
whereas others may be deferred until such time as they are required. Policy 18 in Section 10 of the MPS
states that “It shall be a policy of Council to review this Municipal Planning strategy within 5 years of its
adoption and every 5 years subsequent to each review.” As review is presumably about to begin,
incorporation of priority amendments to coordinate and implement this ICSP should be referred to the review
process. This may well involve prioritizing and coordinating an “amendment package” for public consideration
in the review process.
ICSP Objectives/Actions MPS Status Potential MPS Change(s)
Social
Part
Add the following policy in
Attract immigrants to CBRM and retain
1
of the MPS:
them as productive members of the
community
1. Liaise with the Nova Scotia Office
Policy 1
It shall be a policy of
Part 1
of the MPS, which is its
of Immigration to encourage the
Council to work with other
Introduction
, includes a discussion of
placement of international
levels of government and
Demographic and Historic
CBRM’s
immigrants in CBRM.
agencies engaged in the
Context
but does not directly address
attraction and sponsorship of
immigration.
2. Create a newcomers/immigrants
immigrants to encourage their
network involving business and
consideration of CBRM as a
community leaders, and
place to be educated, live and
immigrants established in CBRM.
work.
Create an “age friendly” CBRM
3. Consider the implications of
CBRM’s aging population in the
development and remodeling of
infrastructure, particularly parks
and recreation facilities.
Actions 12-14
See, below, concerning
4. Upgrade transit and Handi-trans
No change
apartment development.
*
programs.
5. Facilitate the development of
higher density housing types
suited to seniors accommodation.
6. Encourage the revival of the
Retirement Cape Breton program.
Develop opportunities that will
retain/attract youth
7. Support local high schools,
The MPS does not address immigration.
NSCC, and CBU in the
recruitment of students from
outside CBRM and their
Action 84Actions 1 2
See, below, concerning transit. Seeand, above,
placement in accommodation and
Action 83
and, below.
employment.
The MPS does not directly address the
8. Improve transit connections to the
involvement of youth in the community.
*
CBU campus.
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Potential Municipal Planning Strategy Changes
ICSP Objectives/Actions MPS Status Potential MPS Change(s)
9. Engage young people and youth
organizations in CBRM
participation programs including
the implementation of this ICSP.
Part 2 Sales/Service Business
Development
Policy 9.c
It shall be a policy of Council to
facilitate the re-use of abandoned
community or educational service buildings
located in urban suburban/neighbourhoods
outside business districts/corridors. The
building and site of these former facilities
may be converted, by site plan approval,
into one or more of the following service
businesses:
studios of artists or artisans;
business offices; and
Part
Add the following policy in
4
of the MPS:
personal care and service businesses.
Policy 7
It shall be a policy of
Council to encourage the
Revitalize abandoned housing
Policy 11
It shall be a policy of Council to
rehabilitation of abandoned
permit, by site plan approval, the
10. Identify and prioritize abandoned
residential buildings located in
conversion of buildings originally
housing units based on location,
urban suburban/
constructed several generations ago as
condition, and suitability for
neighbourhoods outside
substantial residential dwellings into small
*
occupancy.
business districts/ corridors.
inns. The Land Use By-law provisions
The existing structures and
11. Work with appropriate
specific to such developments and/or the
sites of these residential
organizations to develop a plan to
site plan approval provisions shall stipulate
buildings will preferably be
rehabilitate priority units for sale
that:
restored to the residential use
or rent to meet affordable and
adjacent low density residential uses
for which they were originally
*
seniors housing needs.
are buffered and screened from the
designed (e.g., single
starker ancillary components of the site
12. Demolish units that are poorly
detached) or, if required for
(e.g., parking spaces driveways, utility
*
located or in advanced disrepair.
their preservation, may be
facilities, etc.);
converted by site plan approval
to higher density residential
an on-site parking and vehicular
uses (e.g., semi-detached or
maneuvering plan which does not
apartments).
exacerbate traffic movement problems
along any public street/road abutting the
site be included;
unattractive ancillary and protuberant
structures attached to any main building
are kept from locations directly exposed
to the streetscape;
an on-site landscaping plan be included
that improves the development’s
compatibility with the streetscape and
adjacent low density residential
development.
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Part 4 Residential Development
Policy 1.a
It shall be a policy of the CBRM
to recognize apartment buildings as a
legitimate form of housing providing
accommodation for a significant segment of
the population. The degree to which they
are to be accepted shall range from:
outright permission with little or no
regulatory provisions;
permitted with regulatory provisions;
a requirement to get specific permission
from Council by means of a public
hearing process;
to near prohibition.
The degree of acceptance within any given
Intensify residential development in
neighbourhood shall be based on four
the core of CBRM
broad suppositions:
13. Provide opportunities and
apartment building developments are
encouragement for the location of
essentially an urban type of land use
higher density. residential
with urban service needs the rare
development (i.e., rowhousing
exceptions are primarily public housing
through to high-rise apartment
for seniors or the conversion of former
Policy 1.d.10
Amend of the
structures) in Sydney and,
community service buildings;
MPS to delete the last
*
possibly, North Sydney.
the majority of apartment building
sentence “Such projects shall
tenants often have different service
14. Discourage high density
be permitted even in rural
needs than those of our constituency
development in remaining
service areas.”
who own their own homes;
*
communities and urban areas.
the larger scale of apartment building
15. Encourage CBU to develop
development has a likely potential to
residences or a sub-campus in
conflict with smaller scale low density
the central area of Sydney with
residential development in cloistered
the ultimate goal of relocating the
neighbourhoods i.e., residential
entire campus to the urban core.
neighbourhoods only accessible via
local streets that are overwhelmingly
used by neighbourhood traffic; and
apartment building development can
contribute to the vitality of our
downtowns if allowed to proliferate
within in proximity to or along the major
routes leading to our central business
districts.
Policy l.d.l
To facilitate residential
development back into our downtowns,
throughout the central business districts of
the major urban concentrations, apartment
building development shall be permitted at
the highest densities and largest scale with
the least restrictive lot development
provisions. More specifically this means:
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significantly reduced parking
requirements that recognize the need
for automobiles is not as important to
residents of a central business district
as it is in other neighbourhoods;
more flexible regulations that recognize
the difficulty in providing such amenities
on site because of the density of
development;
significantly reduced landscaping
provisions;
no building setbacks from property
boundaries; and
no lot size standards correlated to scale
of development.
The only exceptions to this policy direction
shall be:
along any public street/roads primarily
serving local traffic, the streetscape of
which is comprised primarily of low
density residential uses and little or no
business sales/service development
exists, where they are to be permitted at
a much reduced scale and density with
more stringent lot development
provisions intended to lessen the impact
on adjacent low density residential
developments by buffering and
screening the starker aspects of the
apartment building development; and
along any waterfront dominated by
recreational/tourist/service-retail
commercial developments where the
starker aspects of the apartment
building development shall be buffered
and screened by landscaping provisions
from the view along any public
recreational pedestrian way.
Policy 1.d.5
While normally not
encouraged on local urban public streets/
roads, apartment building development
shall be permitted at established densities
along any local urban public street/road
where such developments already
predominate in the streetscape, or at the
site of abandoned mobile home parks.
Three separate zones exclusively designed
to permit and regulate apartment building
development are in the Land Use By-law
text, each with a unique maximum density
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threshold, and 16 separate areas are zoned
using one of the three zones, depending on
which zone most closely fits the actual
density of a given area.
Policy 1.d.10
Apartment building
development shall be prohibited in all areas
of the CBRM not serviced with a Municipal
piped sanitary sewer main except for the
following two scenarios. To facilitate the re-
use of abandoned community or
educational service buildings, their
conversion into an apartment building shall
be permitted at the ratio of 1 apartment per
1, 000 sq ft of floor space. This Municipal
Planning Strategy supports the mandate of
the Province of Nova Scotia to provide
public housing for seniors. Such projects
shall be permitted even in rural service
areas.
The MPS does not address the location of
fire or police services.
Part 5Recreation
dealing with , however,
includes the following:
Trend 1
Our constituency is getting older
and as people get older their recreation
needs change.
Part 8
Amend MPS (or other
and
appropriate parts of the MPS)
to address the provision of
Policy 1.a
It shall be a policy of Council to
Consolidate municipal facilities
community services by CBRM
develop recreational objectives with a goal
16. Assess the costs and benefits of
in relation to population
towards:
existing municipal facilities in
served, and complementarity
consolidating our traditional recreational
consideration of long-term
with MPS and ICSP settlement
facilities and consider conversions
demand in face of demographic
policy (i.e., consolidation in the
adaptations to provide facilities for the
*
circumstances.
urban core), technological
sports increasing in popularity;
capacity, and public safety
staff providing support as facilitators
needs.
organizers and trainers to community
volunteer groups; and
where the CBRM is endeavoring to
expand its complement of recreational
facilities it will focus on the needs of the
segments of the population that are
increasing.
Part 2 Sales/Service Business Part
Add the following policy in
Redevelop urban waterfronts
Development 2
of the MPS:
17. Assess the redevelopment
Policy 2.dPolicy 2.d
Downtown Sydney’s waterfront Consider strategic
potential of waterfront areas
and the Esplanade streetscape generally opportunities to develop
associated with other
from Townsend Street north to the Sydney waterfront areas associated
communities in CBRM, most
Marine Terminus warrants exclusive policy with downtown areas identified
notably North Sydney and
direction to foster the recreational/tourist/ in Policy 2.c that have or have
*
Louisbourg.
service/retail focus that is transforming this the potential to draw significant
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18. Solicit the advice and assistance,
waterfront and streetscape. An exclusive tourist business, with initial
and, if mutually agreeable, the zone titled the Downtown Sydney priority being given to the
direct involvement of the
Waterfront (DWZ) Zone shall be in effect for waterfronts of North Sydney
Provincial Waterfront
this Designation. and Louisbourg.
Development Corporation to plan,
improve, and market waterfront
areas within CBRM.
Part
Add the following policy in
7
of the MPS:
Part 7 Transportation Infrastructure
Policy 7
It shall be a policy of
Council to review the
Policy 1
It shall be a policy of Council to
Improve urban street networks
requirement for one-way
establish a public street/road network and
19. Assess the value of one-way
streets wherever they may be
intersection hierarchy based on the criteria
streets in commercial areas of
provided in CBRM but
listed in Chart 1-A and 1-B (see the
*
CBRM.
particularly in downtown
following two pages). Its purpose shall be
shopping areas and waterfront
one of the primary influences on land use
20. Enhance streets where available
areas frequented by tourists
policy directly affecting the development
through the improvement of
with the objective of reinstating
potential of a parcel of land. In other words,
pedestrian and bicycle-oriented
two-way status so as to
where all other factors are equal the higher
infrastructure, and the introduction
facilitate more direct traffic
the level of public street/road access the
*
of planting and landscaping.
connections.
greater the development potential for a
given building lot.
Part 7
Subsequent policies in
should be re-numbered
accordingly.
Part
Add the following policy in
5
of the MPS:
Policy 2
CBRM shall, through
the Subdivision By-law,
Require parkland dedication
establish a requirement for a
minimum of 10% park
21. Amend the CBRM MPS to require
dedication for new subdivisions
dedication of the maximum 10 per
but shall accept cash-in-lieu
cent of land in new subdivisions
The MPS does not require the dedication of and/or in kind contributions in
*
for parks and open space.
recreation land.
place of land where
22. Accept cash-in-lieu and/or in kind
advantageous for the
contributions in place of land
development of parks, trails
where advantageous to CBRM
and recreation facilities
*
and its residents.
beneficial to the wider
community.
Part 5
Subsequent policies in
should be re-numbered
accordingly.
Cultural
Rename CBRM
23. Consult with CBRM residents to
determine their desire for to
The MPS does not address the naming of
rename their municipal No change.
the municipality.
government.
24. In the event of a consensus in
favour of renaming, identify
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appropriate alternative names and
conduct a plebiscite to select a
preferred name in conjunction
with the next following municipal
election.
Promote cultural and heritage events
in CBRM
25. Develop an organization or
council, preferably encompassing
all of Cape Breton Island, through
which cultural organizations can
share ideas and information, and
cooperate to enhance awareness
of and delivery of cultural
products.
The MPS does not address cultural and
No change.
heritage events.
26. Engage young people and youth
organizations in CBRM in the
foregoing organization and,
generally, in the formulation of
cultural events in CBRM.
27. Work with other Cape Breton
municipalities and organizations
to coordinate and present cultural
and heritage events.
Part 2 Sales/Service Business
Development
Policy 8.a
It shall be a policy of Council to
identify the following neighbourhoods as
being unique enough to warrant distinctive
policy direction that allows a wider range of
development than normally would be
expected:
Protect and preserve heritage and
1. the north end neighbourhood of the
architectural assets
downtown Sydney peninsula because of
the combination of its proximity to
28. Continue to designate and
downtown Sydney and the docking facilities
preserve valued heritage and
No change.
for the cruise ships the historical and
architectural resources.
architectural legacy of the streetscape and
29. Develop heritage tours to expose
the tired condition of many of the wonderful
residents and tourists to heritage
old buildings along with a renewed hope
sites.
that this neighbourhood can be rejuvenated
as the former steel plant complex which for
a century loomed next to it is remediated;
2. along Purves Street in North Sydney
because of the combination of its proximity
to the Marine Atlantic Ferry Terminus and
the view along the Harbour;
3. the properties outside of downtown
Glace Bay that overlook the working
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waterfront
4. the neighbourhood between Main Street
in Louisbourg and its working waterfront;
and
5. the neighbourhood in Louisbourg
centered on Wolfe Street leading to the
Fortress of Louisbourg National Park.
With the exception of the North End
neighbourhood of Sydney which now has
its own Secondary Planning Strategy and
implementing Land Use By law unique
zones in the Land Use By law shall be in
effect exclusively for each of the above
mentioned neighbourhoods.
Part 5 Recreation
Policy 6
It shall be a policy of Council that
the preservation for public use of beaches
and shoreline along the shore of the Bras
d’Or Lakes and Sydney Harbour, as well as
prominent peninsulas along the shore of
the Atlantic Ocean, be a recreational
priority for the CBRM. This recreational
priority shall be implemented by:
prohibiting the sale of any CBRM land
associated with a waterfront public
recreational park unless:
the sale of the land will facilitate the
Increase recreational and tourist use
o
expansion of a health care facility
of the Bras d’Or Lakes system
only;
30. Preserve access to Bras d’Or
the sale of the land does not include
beaches.
o
lands actually abutting the shore of
31. Encourage boating on the Bras
No change.
Sydney Harbour, the Bras d’Or
d’Or through provision of boat
Lakes or the Atlantic Ocean;
access points, marinas, and
the land to be sold is not within 30
o
similar facilities to support boat
meters (98.4 ft.) of the high water
cruises, charters, and similar
mark of the body of water the Park
activities on the lake system.
abuts; and
the land to be sold does not include
o
a motor vehicle or pedestrian trail,
the main function of which is to
provide access to the shore;
the CBRM is compensated
o
according to the appraised value of
the land;
the CBRM continuing to support the
concept of an inter-municipal plan for
the Bras d’Or Lake focused on its
environmental remediation by
continuing to participate in the joint
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planning endeavours of the three levels
of government and the First Nations
Reserves;
the Recreational and Planning
Departments and Parks and Grounds
Division of the Dept. of Engineering
and Public Works establishing a
working relationship with the Nova
Scotia Departments of Natural
Resources and Tourism and Culture
focused on the objective of providing
more publicly accessible water frontage
along the shores of East Bay and St.
Andrews Channel;
the CBRM identifying public access to
the South Arm of Sydney Harbour as a
recreational priority.
Promote adventure tourism in CBRM
32. Encourage the development of
eco-tourism businesses.
33. Implement environmental
Actions 35 36
The MPS promotes tourism but not Seeand,
protection measures outlined in
adventure tourism. below.
Section 5.4
of this ICSP to
protect environmental resources
that are the foundation of eco-
*
tourism development.
Part 7 Transportation Infrastructure
Policy 5
The CBRM shall adopt a land use
policy regarding new road infrastructure
needs that impresses upon the Province of
Nova Scotia and the Federal Government
funding should be provided based on the
following as priorities:
a. completing the objective of constructing
a 4-lane divided highway along the entire
Build the Fleur-de-lis Trail connection
length of Highway 125 and providing a by
pass extension of Grand Lake Road around
34. Encourage and support the
No change.
Reserve Mines to Glace Bay;
Province of Nova Scotia in the
development of the proposed
b. completion of the limited access highway
*
Fleur-de-lis highway connection.
designed as an extension of Highway125 to
the SYSCO Business Industrial Park by
providing the following links:
with the collector street in the SYSCO
Business Industrial Park;
with a collector street in Whitney Pier to
give that neighbourhood a direct link;
with Highway 125;
with the CBRM s incinerator/landfill
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facility; and
c. completing the objective of constructing a
controlled access 4-lane divided highway
linking Highway 125 with the 4-lane divided
highway now ending at New Glasgow with
a link to Highway 125 that is more central to
the four largest concentrations of urban
suburban development in the CBRM;
d. providing the community of New
Waterford with a more direct link with
Highway 125;
e. linking the Fleur de Lis Trail with the
Marconi Trail by re-opening the abandoned
road linking Gabarus with Louisbourg,
thereby providing a more direct route:
to the Fortress of Louisbourg National
Park from the Canso Causeway and the
present day Acadian communities of the
Isle Madame area; and
linking the museums public beaches
and nature reserves of east coast Cape
Breton Island along an uninterrupted
designated tourist trail.
Economic
Part
Add the following policy in
2
of the MPS:
Policy 1
The CBRM shall seek
The MPS does not contain policies that
to support, work with, and
directly address the coordination of
Coordinate economic development
assist in the coordination of
economic development in CBRM; however,
initiatives
economic development
Part IIntroduction
, which is the to the
agencies engaged in the
35. Develop an organization or
Plan, states:
promotion and attraction of
council, preferably encompassing
business to the municipality.
all of Cape Breton Island, through the Cape Breton Regional Municipality
which cultural organizations can must adopt an economic development
Policy 2
The CBRM shall seek
share ideas and information, and policy that focuses on ways to provide
to coordinate its efforts in
cooperate to encourage economic the infrastructure to foster this new
economic promotion with the
development. economy and
initiatives of other Cape Breton
Island municipal units and
36. Ensure the involvement of CBRM
implement land use policies that state
economic development
staff in the foregoing council.
the Regional Municipality is open to
agencies.
attract business.
Part 2
Subsequent policies in
should be re-numbered
accordingly.
Support the development of Sydney
Part 3Port Facilities, Business Industrial
Harbour
Parks/Corridors and Nodes
37. Support the dredging of Sydney
Policy 1
Although the authority of
No change.
Harbour.
ownership is not there, the fear of crippling
competition is reason enough for Council to
38. Work with the Port of Sydney to
adopt a policy championing the need for a
ensure effective development of
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supporting road and rail
Harbour Ports Board with a mandate to
infrastructure, and facilitate the plan, develop, market and regulate the
appropriate location of spin-off
ports of Sydney Harbour with the objective
businesses.
being to accrue the optimum benefit for
Cape Breton Island’s economy.
Develop port-to-port connections
Policy 2
As the level of government with
39. Encourage and support The
primary responsibility for land use planning,
Provincial government and
it shall be a policy of Council to continue
Sydney Tar Ponds Agency to
putting forth a concerted effort to influence
connect existing streets and
the future site use objectives of the JAG
Policy 5
Add the following to in
provide appropriate bicycle and
process.
Part 7
of the MPS:
pedestrian connections from the
Policy 3
The Industrial Parks in the CBRM
North End to Whitney Pier
f. developing a roadway
have either port facilities or are owned by
through the Tar Ponds/Coke
extending the Ferry Street right
the CBRM. It shall be a policy of Council
ovens sites as part of the cleanup
of way to connect the North
that the CBRM be instrumental in the
and redevelopment of these
End to Whitney Pier.
organization of a Harbour Ports/Industrial
*
lands.
Parks Board with at least marketing
40. Maintain and improve the
responsibility sanctioned by the owners or
roadway corridor between the
operators of the various port and industrial
Sydney harbourfront and Sydney
park facilities.
Airport.
Develop a business retention strategy
41. Develop CBRM as a recognizable
The MPS does not directly address
“brand” offering specific products,
branding or local product promotion,
skills, and quality, and asserting
Actions 35 36
although, as noted in connection with Seeand,
the position of CBRM as Nova
Actions 35 36
and, above, it asserts a role above.
Scotia’s second urban centre.
in promoting CBRM as a location for
business.
42. Encourage measures to buy
*
goods and services locally.
Assess and address labour force gaps
43. Encourage CBCEDA/ECBC to
undertake study to identify labour
force gaps and develop
appropriate strategies to retain
*
and attract required workers.
44. Encourage development of a The MPS does not address labour supply in
No change.
program to encourage CBRM.
participation of local women and
youth in the labour force.
45. Develop program to draw back
CBRM natives currently working
elsewhere to fill local labour force
gaps.
Encourage locally owned small to The MPS does not directly address
medium-sized enterprises in CBRM branding or local product promotion,
Actions 35 36
although, as noted in connection with Seeand,
46. Continue to streamline
Actions 37 38
and, above, it asserts a role above.
development control processes
in promoting CBRM as a location for
and provide assistance to
business.
applicants pursuing municipal
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permits.
47. Encourage the development of
mentorship programs to engage
senior businesspeople in CBRM
to assist youth and female
entrepreneurs to establish and
manage businesses.
48. Continue to support the
maintenance and enhancement of
Downtown areas within CBRM.
49. Develop an Innovation Centre
within CBRM.
50. Develop linkages with NSCC and
CBU to encourage locally based
entrepreneurism among new
graduates and, particularly,
immigrant students.
Part 6 The Primary Industries
Build on local capacity in resource
Policies 2a-2f
outline measures to regulate
industries
and facilitate Forestry; however, they do not
51. Work with CBU to develop
directly encourage the development of the
capacity in contaminated site and
sector.
minewater remediation.
No change (part of Economic
Policies 3a-3h
outline measures to regulate
Development initiatives
52. Encourage development of value
and facilitate Fishing regulations; however,
Actions 35
addressed by and
added opportunities in the forestry
they do not directly encourage the
36
, above).
sector.
development of the sector.
Policies 4a-4h
outline measures to regulate
53. Encourage development of value
and facilitate Mining; however, they do not
added opportunities in the
directly encourage the development of the
fisheries sector.
sector.
The MPS addresses aspects of this subject as
Part
Add the following policy to
in the following:
2
of the MPS:
Part 7 Transportation
Policy 3
The CBRM shall seek
Reinforce the role of CBRM and,
to reinforce and enhance its
Policy 2
It shall be a policy of Council that the
particularly, Sydney as the primary
role as the primary retail and
#and #2 capital public works public street
1
retail/service area on Cape Breton
service centre for Cape Breton
road projects be:
Island
Island through the pursuit of
1. the reconstruction of Kings Road from
54. Encourage the enhancement of
the following initiatives:
Sydney River to the Esplanade and
road connections to Sydney.*
The CBRM shall encourage
2. the Union Commercial Street corridor in
55. Encourage the maintenance of
the location of retail uses in
downtown Glace Bay.
regional health care and
appropriate locations within
Part 2 Sales Service Business
education services in Sydney.
its boundaries consistent with
Development
the specifications of Policy 1
56. Continue to support the
Policy
2 b Development of aspecific
of this part, with a priority
rehabilitation and enhancement of
downtown plan for each central business
placed on retail operations
downtown Sydney.*
district incorporating:
seeking to locate in
downtown areas and within
streetscape landscaping and architectural
Sydney.
embellishment standards and
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a coordinated approach to infrastructure
The CBRM shall encourage
investment and management shall be the expansion of Cape
considered only as a secondary Municipal Breton Regional Hospital,
Planning strategy process. This secondary
Cape Breton University,
Municipal Planning strategy would be in
Nova Scotia Community
effect throughout each downtown with College, and similar
consideration given to mitigate the potential institutions providing health
adverse affects central business district
care and education services
acan
havethe adjacent central urban residential
within its boundaries.
on
neighbourhood The pre-requisite shall be
The CBRM shall lobby the
consultation with and acceptance of the
Federal and Provincial
business community of each downtown
governments to re-locate to
The Kings Road improvements supported by
the municipality departments,
Part 7, Policy 2 have been completed.
agencies, regional offices,
and/or other functions that
The MPS does not, however establish any
can be cost-effectively
priority for Sydney or any other area of the
delivered from this location.
region. Neither does it address directly the role
of Sydney as a regional centre for health care
Part 2
Subsequent policies in
and education services.
should be re-numbered
accordingly.
Complete development of Sydney
Waterfront
57. Complete the connection of
Waterfront Walkway from the
*
Joan Harriss Pavilion.
58. Continue the Waterfront Walkway
Part 2 Sales Service Business
connection northward to connect
Development
to North End neighbourhoods and
Policy 2.d
Downtown Sydney’s waterfront
southward to connect with Sydney
and the Esplanade streetscape generally
*
River.
from Townsend Street north to the Sydney
59. Acquire necessary lands to
Marine Terminus warrants exclusive policy
No change.
provide a connection from the
direction to foster the recreational/tourist/
southern extension of the
service/retail focus that is transforming this
Waterfront Walkway to Wentworth
waterfront and streetscape. An exclusive
Park.
zone titled the Downtown Sydney
Waterfront (DWZ) Zone shall be in effect for
60. Encourage active land uses
this Designation.
abutting the Walkway (i.e.,
retail/entertainment, residential,
recreational).*
61. Encourage mobile vendors to
locate on the Waterfront
*
Walkway.
Part 3 Port Facilities Business Industrial
Develop North Sydney Waterfront
Parks Corridors and Nodes
62. Improve access between
Policy 6.c
More passengers travel through
Actions 17 18
downtown and the Marine Atlantic Seeand,
the Marine Atlantic terminal than visit the
*
terminal.
above.
Fortress of Louisbourg National Park. It
63. Investigate the potential to create
shall be a policy of Council to delegate the
strategic public connections from
CBRM s Economic Development Manager
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Queen Street to the North Sydney
and staff of the Planning Department with
*
waterfront.
the responsibility of organizing and
managing an on going dialogue between
Marine Atlantic and any business
association of downtown North Sydney.
The objective being alleviating the
pedestrian barriers separating the
passenger terminus from North Sydney’s
waterfront boardwalk and downtown.
Develop Louisbourg Waterfront
64. Develop a pedestrian pathway
The MPS does not address the Louisbourg
from the edge of the Louisbourg
Waterfront.
community to the site of Fortress
*
Louisbourg.
Part 3Port
of the MPS dealing with
Facilities, Business Industrial Parks/
Corridors and Nodes
contains a policy
addressing the attraction of a specific
Decentralize Provincial government
government operation to CBRM in a
functions to CBRM
context similar to the actions suggested in
this ICSP:
65. Target one or more departments
whose operations would be
Policy 4
The Canadian Coast Guard’s
amenable to decentralization to
training facility is located at Sydney
CBRM.
Harbour. This Harbour is the closest to the
entrance of the Canadian Seaway
66. Assess the costs and benefits for
Actions 54 56,
Seeto above.
beginning at the mouth of the Gulf of St.
CBRM and Nova Scotia of such a
Lawrence in the Cabot Strait linking the
move.
international shipping lanes of the North
67. Open negotiations with the
Atlantic with the Great Lakes ports Sydney
Province of Nova Scotia to
Harbour occasionally needs ice breaking
decentralize operations whose
services. Because of these factors coupled
transfer is demonstrably feasible
with the known berthing space problems
and cost-effective.
associated with its facilities in Halifax
Harbour, the CBRM shall continue to lobby
the Federal Government to re-Iocate the
Canadian Coast Guard’s East Coast ice
breaking fleet to Sydney Harbour.
Part 6 The Primary Industries
Encourage local agriculture
Policy 1.a
It shall be a policy of Council to
68. Develop a “small agriculture”
permit all types of agricultural development
approach to agricultural
throughout the rural areas of the Regional
operations.*
Municipality including livestock operations
69. Protect agricultural operators from
that utilize acreage cultivated for feed crops
restrictions owing to land use
and pasture, except in the public water
No change.
conflicts.*
supply watersheds. The construction of
buildings and structures to house and/or
70. Promote value added products
impound agricultural animals, and all
*
based on local production.
ancillary structures, shall be prohibited
within public water supply watersheds. The
71. Limit the urban sprawl to protect
non-conforming status of any such existing
*
valued agricultural land.
buildings shall be relaxed to permit their
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extension, enlargement, alteration, or
reconstruction.
Policy 1.b
It shall be a policy of Council to
advocate for the implementation of the
recommendations of the document titled
“Recommended Agricultural Practices
Within Municipal Drinking Water Supply
Areas in Nova Scotia” formulated by the
Nova Scotia Departments of Agriculture
and Marketing, the Environment, and
th
Health, dated October 9, 1998 to be in
effect in all municipal public water supply
watersheds.
CBRM Council shall pass a Resolution:
asking that the Nova Scotia Legislature
proclaims regulations implementing the
recommendations of this Provincial
inter-departmental document after
consulting with the Federation of
Agriculture; and
promising to provide the Province with
the necessary information identifying
the extent of the public water supply
watersheds in this Regional Municipality
and the location of any cultivated land
used for agricultural practices.
Cooperate with and support First
Nations groups resident within CBRM
72. Support First Nations initiatives to
Part
Add the following policy in
develop their communities within
1
of the MPS:
CBRM by cooperating on
Policy 3
It shall be a policy of
infrastructure and business
Council to work with First
development.
The MPS does not address the relationship
Nations within the boundaries
73. Investigate the potential to trade
between CBRM and First Nations within its
of CBRM to facilitate the
land in central Sydney for lands
boundaries.
development of their
owned by Membertou to the south
communities in concert with
of the Sydney Bypass.
the ongoing development of
74. Work with First Nations leaders to
lands under the jurisdiction of
reinforce the position of CBRM as
the Municipality.
the centre of aboriginal education,
training, and economic
development in Atlantic Canada.
Environmental
Part 8 Public Infrastructure Services
Part
Add the following policy to
Protect the Bras d’Or Lakes system
8
of the MPS:
Policy 5.a
It shall be a policy of Council to
75. Implement recommendations of
continue to support the concept of an inter-
Policy 5.c
It shall be a policy
the Bras d’Or Lakes Development
municipal plan for the Bras d’Or Lake
of Council to adopt the
*
Guidelines within CBRM.
focused on its environmental remediation
recommendations of the Bras
76. Work with Richmond, Inverness,
by continuing to participate in:
d’Or Lakes Development
and Victoria Counties, and the
Guidelines within its
the joint planning endeavours of the
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Eastern District Planning
three levels of government and the First boundaries as appropriate to
Commission to implement Nations Reserves (Pitupaq); and its circumstances and to urge
recommended standards for the
the councils of the Counties of
the Bras d’Or Lakes Stewardship
*
balance of Cape Breton Island.
Richmond, Inverness, and
Society.
Victoria to do the same.
Policy 5.b
It shall be a policy of Council to
consider the drainage basin of the Bras
d’Or Lake as a potential wastewater
management district when developing a
wastewater management strategy for the
entire Regional Municipality.
Part 8 Public Infrastructure Services
Policy 1.a
It shall be a policy of Council to
prioritize capital expenditures that improve
the water, sanitary and storm sewer
infrastructure to the urban communities first
before investing in extensions of these
services into communities and
neighbourhoods that are not presently
being provided by such infrastructure
services unless the public health or the
environment of certain unserviced
Continue Wastewater Treatment
neighbourhoods communities or
Strategy
subdivisions are threatened and all
77. Continue to develop CBRM’s
reasonable options under the wastewater
wastewater treatment strategy.*
management district provisions for the area
affected are exhausted refer to Policy 3 of
78. Work with senior governments to
this Part.
develop a funding model that will
No change.
The threshold shall be gauged by the
allow CBRM to address the
following criteria water is being provided in
requirements of the Provincial
compliance with Health Canada’s
wastewater treatment strategy.
guidelines for Canadian drinking water
79. Develop wastewater treatment
quality and fire flow volumes from the
plants as necessary funds and
hydrants alone or from a demonstrated
assistance become available.*
combination of hydrants and tanker
pumpers are in compliance with the
Insurance Advisory Organization’s
minimum standards wastewater is being
collected and transported to the main trunk
and stormwater is being collected to ensure
all basements located above mean sea
level constructed in compliance with the
Building Code Act of Nova Scotia are not
flooded because of a 1 in 100 year storm
for Cape Breton according to Environment
Canada.
Part 8 Public Infrastructure Services
Protect municipal water supply
Policy 1.a
It shall be a policy of Council to
watersheds
implement a public water supply
No change.
80. Complete protection strategies for
management plan incorporating:
all water supply watersheds in
the abandonment of Sydney River as a
*
CBRM.
source of public drinking water and to
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service the demand by replacing it with
greater volumes tapped from the
Sydney wellhead aquifer;
adding the MacAskills Brook reservoir
as a source supplying the Glace
Bay/Dominion/Reserve Mines
communities in conjunction with Sand
Lake;
a watershed land acquisition program;
zoning regulations under the Municipal
Government Act;
prescription under the Environment Act;
a wastewater management plan for
existing development;
public education; and
liaison with other levels of government.
Policy 1.b
It shall be a policy of Council to
strive to acquire privately owned lands
within the watersheds of public water
supplies. To this end, the CBRM shall apply
to the Nova Scotia Utility and Review Board
for a minor water utility rate increase. The
sole purpose of this would be to establish a
fund dedicated to the gradual acquisition of
privately owned lands within the
watersheds of public water supplies. Such
lands shall be acquired based on a land
purchasing program that places all privately
owned parcels in a hierarchy of
development potential using criteria that
gauge the likelihood each parcel could be
reasonably developed without a significant
capital investment.
Policy 1.c
It shall be a policy of Council to
establish a zone in the Land Use By-law to
be in effect exclusively for the watersheds
of CBRM’s sources of public water It shall
be titled the Public Water Supply
Watershed (PWS) Zone. The PWS Zone
shall only permit the following types of
development:
conservation and water supply utility
uses;
existing residential development;
low density residential development on
lots significantly larger than the typical
lot size standards of the Nova Scotia
Department of Environment and Labour
to be accessed only by public
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street/roads that existed at the coming
into effect of this Municipal Planning
Strategy;
agricultural crop farming and livestock
grazing (refer to Policy l.b of Part 6);
and
the primary industry aspect of forestry;
and any existing business development
established at its present location
before the watershed it is located within
was first zoned PWS and continuously
in use, subject to zoning provisions in
the Land Use By-law designed to offer
stringent protection for the utility’s
source of water.
Policy 1.d
It shall be a policy of Council to
implement provisions regulating and/or
prohibiting only the most potentially
obnoxious activities within the watersheds
of the CBRM’s public water supplies. This
policy directive is to be accomplished:
by instructing staff of the Planning
Department and the Dept. of
Engineering and Public Works to
formulate draft provisions and once
accepted by Council
to request that the Minister of the
Department of Environment and Labour
designate the watersheds of the
CBRM’s public water supplies as
protected water areas and proclaim the
drafted provisions as regulations to be
administered and enforced by the
CBRM to be in effect throughout all
protected water areas.
Policy 1.e
It shall be a policy of Council to
adopt a By-law that identifies any public
water supply watershed with at least one
dwelling within it serviced by an on-site
wastewater disposal system as a
wastewater management district pursuant
to the Municipal Government Act. Using
these tools, the CBRM will implement a
monitoring and maintenance program that
will include:
inspections of all on site sewage
disposal systems within the wastewater.
management districts;
a cost sharing replacement program
with the landowner if it is determined
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the system is malfunctioning or
antiquated; and
regular septic tank clean outs (i. e.,
pumpings) to remove solids in
accordance with accepted practices
scheduled by the Regional Municipality
and paid for by the owner as an
additional taxed service amortized over
the period of time between clean outs.
Policy 1.f
It shall be a policy of Council to
recognize the importance of public
education and awareness regarding public
water supply watershed protection. The
CBRM shall endeavour to ensure that
efforts are made to notify the public of the
extent of the CBRM’s public water supply
watersheds. This policy directive shall be
implemented by a variety of methods
including:
the construction and maintenance of
signs at strategic locations at the edge
of and within each public water supply
watershed;
notification reminders to property
owners of property within a public water
supply watershed;
providing literature to the Regional
School Board that promotes knowledge
of the public water supply watersheds
within the CBRM.
Policy1.g.1
The CBRM shall endeavour to
orchestrate a comprehensive inter-
governmental approach to public water
supply watershed management. The
various agencies of the Province of Nova
Scotia and the Federal Government who
have jurisdictional responsibilities regarding
land use and activity shall be invited to
participate with this Municipality in a joint
effort towards watershed protection.
Policy 1.g.2
The CBRM shall endeavour to
lobby the Province of Nova Scotia to
designate all Provincially owned lands
within the public water supply watersheds
of the Regional Municipality as Protected
Areas pursuant to the Department of
Natural Resources’ land use plan.
Policy 1.g.3
The CBRM shall endeavour to
negotiate with DEVCO for the transfer of
ownership of all DEVCO lands within the
watershed of a CBRM public water supply
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to this Municipality.
Part 9 Environmental Issues
Policy 6
CBRM shall endeavour to work
with the other two levels of government with
the objective of developing comprehensive
erosion setback provisions to be
Address coastal erosion issues
implemented in the Land Use By law. This
will commence with the CBRM
81. Encourage and support Federal
orchestrating a joint discussion amongst
and Provincial regulatory
the three levels of government regarding
agencies to develop a plan to
the erosion of the CBRM’s shorelines. The
mitigate coastal sedimentation
purpose of the discussion shall be to
and flooding caused by
provide a forum for each level of
sedimentation of drainage
government to explain their responsibilities No change.
structures.
regarding this issue and to initiate a
82. Implement recommendations of
continuous dialogue leading to a joint plan
the Mira Gut Channel
to collect and analyze the necessary data
*
Sedimentation Study.
to support the erosion setbacks.
83. Encourage the development of a
Policy 7
It shall be a policy of Council to
coastal setback regulation by
develop a liaison with the Province of Nova
CBRM.
Scotia s Dept of Natural Resources to
consider formulating a coastal management
plan for sensitive shoreline areas of the
CBRM outside the jurisdiction of the
Provincial Crown Designations for publicly
owned lands.
Part 10 General Provisions Policies
Increase green energy development
Policy 14
It shall be a policy of Council to
84. Develop wind farm opportunities
permit utility scale wind turbines as a
*
in CBRM.
General Provision in the Land Use By-law
85. Explore opportunities for
throughout the CBRM. Their placement
geothermal energy development
shall be regulated by a setback from
No change.
and encourage its use where
residential development correlated to height
*
feasible in CBRM.
of the structure to ensure they are kept
back from dwellings a sufficient distance so
86. Investigate potentials of
that they cannot loom over a dwelling,
underground coal gasification and
noise is not a concern and view planes are
*
coalbed methane extraction.
not blocked.
Adapt to potential climate change and
its consequences
Policy 6 Part 9
Amendof to
87. Assess predicted sea level rise
add the following bullet point:
and associated storm surge for
The MPS does not address climate change;
to assess predicted sea
coastal areas and major
Part 9
however, dealing with
level rise and associated
watercourses.*
Environmental Issues
includes a section
storm surge for coastal
Erosion Setbacks Policy 6
oncontaining
areas and major
88. Adopt appropriate building and
Actions 81-83,
reproduced in relation to
watercourses associated
management regulations to
above.
with climate change to
minimize the exposure of new
further support the erosion
construction and infrastructure to
setbacks.
anticipated impacts of climate
change.
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Part 7 Transportation Infrastructure
Policy 8
Because it is a service that is so
heavily subsidized by a Municipality which
can least afford it, it is imperative the
Improve public transit services
Amend the MPS as beneficial
CBRM accrue the maximum revenue
89. Consider all realistic means to
to implement the
generation from its public transit system. It
increase the use of transit within
recommendations of the
shall be a policy of Council that a
CBRM in the context of transit
current transit study.
comprehensive survey be conducted to:
*
study recommendations.
determine ridership characteristics; and
determine why others don’t use our
public transit system.
Implement Active Transportation Plan
Part 7 Transportation Infrastructure
90. Develop all components of the
Policy 12
It shall be a policy of Council to
Active Transportation Plan
implement an active transportation plan for
consistent with the adopted
the CBRM including a system of bicycle
*
program of CBRM.
and walking trails. The staff of the Planning
91. Incorporate sidewalks, walkways,
Department, Recreation Department, and
and bikeways as a component of No change.
the Department of Engineering and Public
street upgrading projects as they
Works shall work with the Active
*
occur.
Transportation Coalition of Cape Breton
County and any other committee
92. Secure corridors for walkway and
organization or association with goals
bikeway connections in new
towards an active lifestyle to formulate this
subdivisions through required
plan.
*
parkland dedication.
Part 8 Public Works Infrastructure
Services
Policy 3.a
It shall be a policy of Council to
implement a rural servicing policy that
Encourage the establishment of
attempts to put into practice legitimate
Wastewater Management Districts
alternatives to extensions of existing water
93. Establish WWMDs for existing
and sewer mains to resolve rural servicing
communities relying on on-site
problems. In concert with the policy
wells and/or septic sewage
direction of Policy statement 1 of this Part,
*
disposal in CBRM.
a wastewater management strategy shall
be formulated that will:
94. Require the establishment of
WWMDs for all new
define a Municipally operated sanitary
developments relying on on-site No change.
sewer servicing boundary based on the
wells and/or septic sewage
capacity of the existing Municipal
*
disposal in CBRM.
systems and delineated by the extent of
the drainage area capable of being
95. Require the development of
serviced;
financial plans for all WMMDs
identifying all capital, operating,
describe the legitimate alternatives to
and potential replacement costs,
extending existing water and sewer
and charging regime for
mains into the communities and
*
recovering these costs.
neighbourhoods beyond the sanitary
sewer servicing boundary that must first
be considered and tried before
extensions of Municipally operated
sanitary sewer and water mains will be
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considered as a solution to any
potential or existing environmental
problem;
recognize that any initial capital cost
and regular and recurring service
provided by the CBRM as a legitimate
alternative be a cost recovery service
implemented as an area rate to the
neighbourhood/community serviced;
and
impose a Municipal capital cost
recovery formula on any extensions of
existing water and sewer mains
implemented as an area rate to the
neighbourhood/community serviced by
the extension;
take a pro-active approach by initiating
a holistic method of wastewater
management in neighbourhoods
communities where such problems
have the greatest potential to manifest
themselves.
Policy 3.b
Further to Policy 3.a, the
wastewater management strategy will
identify as wastewater management
districts, the neighbourhoods/communities/
subdivisions where on-site water supply
and/or wastewater disposal malfunctioning
problems have the greatest potential to
manifest themselves. Determining which
neighbourhoods/communities/subdivisions
shall be identified as potential wastewater
management districts shall be based on the
following criteria:
the density of a given neighbourhood
(e.g., a concentration of residential
development with a density significantly
greater than the present lot size
standards of the Department of
Environment and Labour would
approve);
the age of the dwellings (e.g., a cluster
of dwellings most of which were
constructed well prior to the
implementation of government
standards);
the size of a subdivision (e.g., some of
the larger subdivisions range from
several dozen dwellings to several
hundred); and
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the proximity to a body of water (e.g., in
so-called cottage country dwellings can
congregate in cloistered coves);
areas serviced by a Municipal water
main and on-site sewage disposal
systems; and
within the watershed of a public water
supply source.
Policy 3.c
Once neighbourhoods/
communities/subdivisions are identified as
potential wastewater management districts
the CBRM shall progressively initiate public
consultation programs for each that would
generally involve:
approaching each neighbourhood
community subdivision to offer to
explain the concept of a wastewater
management district;
offering to educate homeowners on the
proper maintenance of their on site
systems and the negative impacts to
the environment and public health from
failed septic systems;
identifying, and possibly implementing,
alternative wastewater treatment
methods that could be used to prevent
on site water supply and or wastewater
disposal malfunctioning problems from
occurring.
These methods could range from merely
maintaining a data base exclusively for
each neighbourhood/community/
subdivision establishing a monitoring and
maintenance schedule for existing systems
or design of a new system (e.g., cluster).
Policy 4.b
It shall be a policy of Council to
designate areas serviced by a Municipal
water main and on-site sewage disposal
systems as potential wastewater
management districts based on their unique
characteristics.
Continue to address the reduction of
Solid Waste
96. Implement a Clear Bag program
to respond to Provincial diversion
The MPS does not address solid waste
No change.
requirements as well as to benefit
management
from the additional diversion
credits.*
97. Take advantage of available
capped Sydney Landfill area to
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expand and extend the life of
CBRM’s C&D landfill.*
98. Expand the CBRM Compost
Facility to full capacity, as
demand increases, and as new or
enhanced waste streams become
available.*
99. Work with private sector and
regulatory agencies to develop
alternative uses for various waste
streams so as to limit the amount
of waste transported outside of
CBRM.*
Governance
Work with the Province of Nova Scotia
to develop a fairer system of municipal
equalization
Part
Add the following policy in
100. Work with the Union of Nova
1
of the MPS:
Scotia Municipalities (UNSM),
Policy 2
It shall be a policy of
other municipal governments in
Council to pursue fair provision
Nova Scotia, and supportive
of equalization monies
public organizations to increase
The MPS does not address the issue of
allocated to Nova Scotia
awareness of the equalization
municipal equalization.
municipalities and of Federal
issue in terms of removing the
equalization monies provided
current equalization cap and
to the province to assist with
sharing in the Federal
the equitable provision of
equalization allocation.
services in all areas of
101. With UNSM, pursue realistic
Canada.
avenues to enhance and augment
municipal equalization support in
Nova Scotia.
Assess the size and structure of
CBRM Council
102. Assess the size of CBRM Council
in consultation with the interested
The MPS does not address Council size or
public.
No change.
structure.
103. Assess strategic options to
increase consideration of CBRM-
wide concerns in municipal
decision-making.
Enhance communication between the
public and municipal government in
CBRM
104. Enhance the CBRM Web site to
The MPS does not address this form of
No change.
provide ongoing capability for
consultation.
members of the public to
comment on Council meetings
and municipal initiatives, and to
provide their ideas on ways to
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improve municipal services.
105. Employ Web polls and surveys
periodically to obtain public input
on questions of municipal interest.
Part 8 Public Works Infrastructure
Services
Policy 1 a)
It shall be a policy of Council to
prioritize capital expenditures that improve
the water, sanitary and storm sewer
infrastructure to the urban communities first
before investing in extensions of these
services into communities and
neighbourhoods that are not presently
being provided by such infrastructure
services, unless:
the public health or the environment of
certain unserviced neighbourhoods
communities or subdivisions are
threatened; and
all reasonable options under the
Plan infrastructure improvements to
wastewater management district
ensure coordinated renewal
provisions for the area affected are
exhausted (refer to Policy 3 of this
106. Continue to apply methods of
Part).
infrastructure prioritization already
No change.
*
in place in CBRM.
The threshold shall be gauged by the
following criteria:
107. Refine the foregoing methods to
take account potential water is being provided in compliance
*
consolidation of communities.
with Health Canada’s guidelines for
Canadian drinking water quality; and
fire flow volumes from the hydrants
alone, or from a demonstrated
combination of hydrants and tanker/
pumpers, are in compliance with the
Insurance Advisory Organization’s
minimum standards;
wastewater is being collected and
transported to the main trunk; and
stormwater is being collected to ensure
all basements located above mean sea
level constructed in compliance with the
Building Code Act of Nova Scotia are
not flooded because of a 1 in 100 year
storm for Cape Breton, according to
Environment Canada.
Part 8 Public Works Infrastructure
Establish Regional Development
Services
Boundary
No change.
Policy 1.b
It shall be a policy of Council to
108. Define a Regional Development
define a Municipally operated sanitary
Boundary encompassing currently
sewer servicing boundary based on the
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*
serviced areas of the urban core.
following factors:
the size and capacity of the mains at
the frontier of the serviced area and the
size and capacity of the mains in the
system they are connected to;
determination of the untapped potential
within the extent of the existing
systems;
topography; (sanitary sewer)
the maximum safe yield at the source
(water).
With the implementation of this servicing
boundary, services will not be extended
beyond it unless existing developments
threaten public health or the environment
and all reasonable options under the
wastewater management district provisions
for the area affected are exhausted (refer to
Policy 3).
Policy 4.a
The CBRM shall endeavour to
work in tandem with the Nova Scotia
Department of Environment and Labour to
monitor rural service areas in proximity to a
CBRM water main to alleviate the potential
need to extend the water main.
Part
Add the following policy to
8
of the MPS:
Policy 1.c
It shall be a policy
of Council to recover, as a
surcharge on the sale of lots,
the cost of any required off-site
water, sewer and road
infrastructure upgrades from
Institute Development Charges for
new residential development
new development
based on calculation of
109. Implement Development Charges
The MPS does not address Development
associated costs determined
to recover the cost of
Part 8
Charges except in dealing with
through a master plan study to
infrastructure construction
Public Infrastructure Works
, where it
be prepared by an
required by new development
refers to “property charges” as a means to
independent professional at
taking into account impacts on
fund Wastewater Management Districts.
the cost of the developer.
water, sewer, storm,
Policy 1.d
Where proposed
transportation, and transit
developments do not, at their
*
provisions.
inception, require access to
municipal water and/or sewer
networks, it shall be a policy of
Council to require that the
developer include in the
required master plan study an
assessment of the risk and
potential cost of future need for
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ICSP Objectives/Actions MPS Status Potential MPS Change(s)
access to municipal systems,
which shall be taken into
account in the calculation of
the surcharge to be levied.
“Green” municipal operations
110. Institute green municipal
*
procurement policy.
The MPS does not address municipal
No change.
procurement.
111. Increase environmental
awareness of municipal staff
*
through promotion and training.
Part 5 Recreation
Policy 1.b
The Department of Education
recognizes the importance of integrating
Optimize use of public facilities
recreational facilities into the educational
112. Work with community groups and curriculum more and more. The Police
the Cape Breton-Victoria Regional
understand the relationship between a lack
No change.
School Board to develop
of recreational opportunities for children of
arrangements to facilitate broader all ages and potential aberrant behaviour.
public access to community The CBRM shall therefore endeavour to
*
facilities.
work in conjunction with the local School
Board and the Police Department, as well
as the community at large, to provide
recreational facilities for youth.
Work with other Cape Breton Island
municipal units
113. Investigate the feasibility of
The MPS addresses inter-municipal
ongoing senior level consultation
arrangements only in relation to the
among Mayors and CAOs
protection of the Bras d’Or for which it
concerning common challenges
Actions 35 36
Seeto,above.
advocates the co-operative development of
and aspirations.
Part 5, Policy 6
an inter-municipal plan (,
Actions 31
reproduced above in relation to
114. Participate positively in initiatives
32
and).
to coordinate the presentation and
marketing of Cape Breton Island
as a whole.
Develop municipal structures and
procedures to implement this ICSP
115. Establish ICSP Implementation
Committee.
116. Develop Community ICSP
Engagement Plan.
The MPS does not address the ICSP.
117. Develop and maintain a Municipal
Indicators Program.
118. Review ICSP Actions annually
leading to comprehensive five-
year review.
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Statements of Provincial Interest
9.0 STATEMENTS OF PROVINCIAL INTEREST
Statements of Provincial Interest are declarations of policy contained in Schedule B of the Nova Scotia
Municipal Government Act. They have been adopted by the Province of Nova Scotia to guide its
municipalities and ensure that the actions undertaken by municipal units do not conflict with the Province’s
broader objectives. The Province has adopted five Statements to date dealing with Drinking Water Supplies,
Flood Risk Areas, Agricultural Land, Infrastructure, and Housing. Each of the five Interest Statements is
reproduced in the following table along with the Province’s related statements concerning their application.
The compliance of this ICSP with each is summarized in the third column.
Interest Statement ApplicationCompliance
Drinking Water Supplies
GOAL
:
To protect the quality of drinking
water within municipal water supply
watersheds
BASIS
:
CBRM has developed water treatment
A safe supply of drinking water is a
facilities for all of its urban communities
basic requirement for all Nova
This statement applies to all and has adopted protection measures for
Scotians.
municipal water supply watersheds in some water supply watersheds. The ICSP
the Province including surface commits the Municipality to work with
Inappropriate development in
watersheds and groundwater property owners and other relevant
municipal water supply watersheds
recharge areas. agencies to create watershed protection
may threaten the quality of drinking
strategies for remaining water supply
water.
watersheds.
Some water supply watersheds are
located outside the municipality
using the water. The municipality
depending on the water therefore
has no direct means of protecting
its supply.
Flood Risk Areas
GOAL
:
None of the five Flood Risk Areas
This statement applies to all Flood
identified is within CBRM; nevertheless,
To protect public safety and property
Risk Areas that are designated
many major watercourses are located
and to reduce the requirement for
under the Canada-Nova Scotia
flood control works and flood damage within the Region’s boundaries. ICSP
Flood Damage Reduction Program.
recommendations concerning the
restoration in floodplains. These are:
implementation of the recommendations
East River, Pictou County’
of the Bras d’Or Lakes Development
BASIS
:
Guidelines encompass proposals to put
Little Sackville River, Halifax
Floodplains are nature's storage
watercourse buffers in place and impose
County;
area for flood waters.
restrictions that will limit construction in
Sackville River, Halifax County;
areas at risk from sea level rise and
New development in a floodplain
associated storm surge.
Salmon and North Rivers,
can increase flood levels and flows
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Statements of Provincial Interest
Interest Statement ApplicationCompliance
thereby increasing the threat to Colchester County; and The ICSP recommends assessment of
the need for consideration of similar
existing upstream and downstream
West and Rights Rivers and
development. restrictions for coastal areas and
Brierly Brook, Antigonish County.
watercourses located outside the Bras
Five floodplains have been
d’Or Lakes watershed, most notably the
There are other areas in the
identified as Flood Risk Areas
Mira.
Province that are subject to flooding
under the Canada-Nova Scotia
which have not been mapped under
Flood Damage Reduction Program.
the Canada-Nova Scotia Flood
Damage Reduction Program. In
these areas, the limits of potential
flooding have not been scientifically
determined. However, where local
knowledge or information
concerning these floodplains is
available, planning documents
should reflect this information and
this statement.
Agricultural Land
GOAL
:
To protect agricultural land for the
The ICSP recognizes the importance of
development of a viable and
locally produced food and encourages the
sustainable agriculture and food
development of local agriculture.
industry.
The ICSP supports the designation of an
urban Development Boundary that,
among other purposes, will limit the
BASIS
:
Applies to all agriculturally potential for urbanization to infringe on
The preservation of agricultural land
designated lands. rural areas.
is important to the future of Nova
The ICSP also recognizes the potential
Scotians.
for conflicts between agricultural
Agricultural land is being lost to
operations, and residential, commercial,
non-agricultural development.
and industrial land uses. It commits to
support the right to farm within the
There are land-use conflicts
boundaries of CBRM.
between agricultural and non-
agricultural land uses.
Infrastructure
GOL
A
:
A central objective of this ICSP is to
encourage the concentration of residential
To make efficient use of municipal
development in the urban core of CBRM
water supply and municipal
through the creation of a Development
wastewater disposal systems.
Boundary.
The ICSP recognizes wastewater
BASIS
:
treatment for urban areas of CBRM as a
Applies to all communities.
All levels of government have made
priority within the ability of the Municipality
significant investment in providing
to finance required improvements.
municipal water supply and
A key thrust of ICSP policies encouraging
municipal wastewater disposal
the concentration of development is to
infrastructure systems.
minimize and conceivably avert the
required investment in these facilities,
Unplanned and uncoordinated
recognizing that doing so will also reduce
development increases the demand
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Interest Statement ApplicationCompliance
for costly conventional needs for other infrastructure
infrastructure. development (i.e., water and roadway
networks, recreation facilities, schools,
etc.).
The ICSP also encourages the adoption
of full cost pricing approaches to on site
and communal water and sewer systems
to encourage their proper construction
and maintenance, and protect the
municipality from the costs of remediating
failed systems.
Housing
Sustainability objectives also include the
provision of higher density housing types
needed to accommodate young adults,
whose attraction is a priority for CBRM,
and for the region’s growing senior
population.
GOAL
:
The ICSP recommends encouraging
higher density development of this type in
To provide housing opportunities to
Sydney where youth and seniors will have
meet the needs of all Nova Scotians.
most ready access to services most
Applies to all communities.
relevant to their needs, most notably
BASIS
:
educational institutions for the young and
health care facilities for the elderly.
Adequate shelter is a fundamental
requirement for all Nova Scotians.
The ICSP also recognizes the challenge
and opportunity presented by abandoned
dwelling units within CBRM,
recommending their strategic
rehabilitation where such units have
access to existing service networks and
can meet the needs of targeted groups.
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10.0 IMPLEMENTATION AND MONITORING
For this ICSP to ensure the achievement of a sustainable CBRM, it must be systematically and consistently
implemented, maintained, and reviewed. The focus of implementation will be to maintain the relevance of
CBRM’s ICSP framework, and motivate municipal staff, stakeholders, and citizens to incorporate
sustainability into their decision-making processes. Successful implementation of the plan will require ongoing
coordination, collaboration, commitment, and engagement among a wide variety of stakeholders and the
community.
10.1 Implementation
Effective implementation of this ICSP requires ongoing commitment to its principles combined with continued
engagement of the community. This implies continuation of the process through which the ICSP has been
formulated, including ongoing Council oversight and promotion of sustainability across the community.
10.1.1 ICSP Implementation Committee
Implementation of this ICSP should be assigned to a Municipal ICSP Implementation Committee appointed by
the Mayor and Council, and comprised of Council members. CBRM’s ICSP Committee has worked effectively
with Stantec consultants and municipal staff during preparation of this document. A similar Committee,
preferably involving a substantial number if not all of the same representatives, should now be designated as
the ICSP Implementation Committee to carry the plan forward. This Committee should have primary
responsibility for the ICSP over the first year of its implementation. Appointed Councillors may well include
members of the current ICSP Committee, who have overseen the preparation of this document and are most
familiar with its content. The Committee should be supported by municipal staff with direct responsibility for
infrastructure (i.e., engineering and planning) as well as the Finance Department. The Committee mandate
will include the following:
To guide implementation of those components of the ICSP for which Regional Council has primary
responsibility (i.e., Principles of Sustainability, Goals, Actions)
To facilitate ongoing collaboration within the municipal government and ensure that the ICSP is integrated
across all service areas.
The Committee will be the primary mechanism to institutionalize sustainability and systematically incorporate
consideration of CBRM’s Sustainability Principles and ICSP Action Plan into the municipal decision-making
process, including processes for land use planning and resource allocation. After a year or at an appropriate
time of its choosing, Council may wish to expand the Implementation Committee to include citizen members
in the same manner as its Planning Advisory Committee.
The mission of the Committee during its first year will be to direct and coordinate efforts within and between
municipal departments and committees with the objectives of:
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Aligning municipal programs, policies, and plans with the ICSP
Updating Action mapping on an ongoing basis in a timely manner (including Action resource needs and
timelines)
Section
Ensuring implementation of Priority Actions for which the Municipality is responsible as set out in
5.0
Carrying out baseline and ongoing monitoring and evaluation to assess CBRM’s progress toward meeting
the Goals and Vision of the ICSP
Reporting on progress (including developing and publishing an annual CBRM ICSP Report Update)
Organizing and hosting an annual CBRM ICSP Community Open House/Meeting
Promoting ongoing motivation and engagement of community members between key annual ICSP events
and documents
Preventing and mitigating conflicts that may arise between departments during the implementation stage
(e.g., conflicts arising due to uneven distribution of costs and benefits associated with certain
sustainability initiatives)
Collaborating with potential partners and other levels of government to establish new legislative powers
and sources of sustainable funding
Working effectively in association with partners as necessary to achieve the objectives listed above.
10.1.2 Public Engagement
Public participation is fundamental to both the development and implementation of all community plans and
CBRM’s ICSP is no exception. The creation of this ICSP, although necessarily compressed, involved an
Section 5.0
intensive community engagement program that elicited most of the ideas incorporated in , above.
The ongoing implementation, monitoring, review, and improvement of the plan will benefit greatly from further
public involvement. In CBRM, it is especially important that the process include the full range of community
members from youth seeking to pursue productive careers to seniors who have given much to the community
and are now entering a hopefully secure retirement but who still have much to contribute. It should also
include urban, rural, immigrant, and First Nations communities that bring distinct approaches and energies.
The methods of public engagement are similarly diverse and are widening in scope with improvements in
communications technology. We have employed several “new” techniques to provide information to the public
and obtain their feedback in the course of developing this ICSP. These methods and more need to be
deployed to sustain ongoing community engagement in the context of an ICSP Implementation Engagement
Strategy similar to the Community Engagement Plan that guided consultation through the ICSP preparation
process. This strategy would target the involvement of municipal staff and the public in ICSP implementation
and could incorporate any of the following measures several of which correspond to proposed actions in
Section 5.0
(identified in bold within parentheses):
The addition of appointed citizen members to the previously outlined Municipal ICSP Implementation
Committee.
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Launch of a sustainability section of the CBRM Web site or a separate site devoted entirely to the
Action
Municipality’s ICSP process and progress (104), and to support the following:
Creation of an online searchable database of CBRM programs and initiatives, in association with the
foregoing that have been implemented in support of ICSP Goals, as well as community actions that have
been undertaken by citizens working towards sustainability
Posting/publication of a sustainability newsletter, brochure, or sustainability section/insert of the local
newspaper
Conduct of surveys using Web-based or other methods, particularly to develop indicators required to
monitor ICSP progress.
Development and implementation of an Education and Awareness Program to increase buy-in from
municipal staff, community organizations, and residents including the following:
Use of Community Based Social Marketing techniques to foster sustainable behaviour among municipal
staff and the public (i.e., application of methods similar to anti-smoking campaigns to encourage citizens
to save energy, manage their waste, check their septic tanks, and maintain their health)
Recruitment in conjunction with community partners of public speakers with expertise on sustainability
and community development techniques
Incorporation of sustainability themes in corporate information materials (e.g., with utility bills, in
recreation programs, and as a component of municipal advertising for human resources, public meetings,
and other purposes).
Generation of press releases announcing ICSP initiatives and calling attention to ICSP-related events
Ongoing meetings with partners and the public to pursue ICSP initiatives including:
Actions 111
Provision of sustainability training for municipal staff ()
Actions 38 39
Meetings with partners stakeholders to advance specific ICSP actions (and)
Actions 113 114
Community forums with other Cape Breton Island municipalities (and)
Annual Public Open Houses to present ICSP progress and obtain public feedback.
10.1.3 Internal Sustainability
In addition to stimulating sustainable action in the community and undertaking specific projects to advance
sustainability, CBRM itself has an important role to play as an exemplar of sustainable practice. Internal
sustainability should entail integration of plan implementation within and across municipal departments and
service areas, as well as integration of the plan as a governance document into the framework of existing and
future policies.
Priority Action 111 will initiate Corporate Sustainability Training for key municipal decision-makers as well as
municipal staff. Program content should include general sustainability education and engagement material, as
well as material explaining the relevance of sustainability and the ICSP to municipal decision-makers and staff
(e.g., how sustainability and the ICSP relate to the roles and responsibilities of municipal decision-makers and
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other employees). Such a program would increase sustainability buy-in among municipal officials and staff, as
well as increase their appreciation of the important role that they play in implementing the ICSP.
The sustainability principles expressed in the ICSP can be integrated into municipal decision-making through
a variety of mechanisms. For example, regular reporting of progress toward sustainability can help guide
Section 10.2
decision-making. As discussed in , this includes monitoring and evaluating actions taken as well
as sustainability indicator measurements. Furthermore, municipal staff, most notably with the Planning and
Engineering Departments but also including Finance, Recreation, and others, will work with the ICSP
Implementation Committee to support its decision-making and execute its directives.
10.1.3.1 Alignment of Programs, Policies and Plans
The primary purpose of the ICSP is to make all municipal policy consistent with the Vision and Goals stated in
Section 7.0
this document. The table in lists municipal planning initiatives that may support implementation of
the ICSP. These can be undertaken collectively as a package or separately as beneficial to advance related
actions. In any case, alignment of programs, policies, and plans can be advanced through regular review
(annually or at scheduled intervals) of this ICSP, the MPS, and other related documents, followed by
incorporation of revisions/updates and adoption of new documents as necessary. Efforts should also be made
to align the policies of partnering organizations and other levels of government with the ICSP to the greatest
extent possible.
The ICSP should be posted prominently on the Municipal Web site for reference by municipal staff, partners,
and the public to facilitate their reference to its content and commitment to its principles. The ICSP
Implementation Committee and Community Advisory Group described following will play a pivotal role in this
process. The Municipality may choose to enter into implementation agreements with other organizations to
formalize key relationships.
10.2 Monitoring and Evaluation
This ICSP will be administered in a changing environment on which the ICSP itself will act. The required
review process should assess the implementation of proposed actions, evaluate the continued need for
specific actions, and identify potential new actions. This will lead to a process of “checking off” completed
actions, deleting actions deemed inappropriate in changing circumstances, affirming remaining proposed
actions, and adding new actions to respond to emerging conditions.
10.2.1 Indicator Reporting
Indicators of well-being have received considerable attention over the past decade and a half as analysts
have recognized the shortcomings of wealth based measures such as Gross National and Gross Domestic
Product, and growth trends such as population growth. While these traditional measures most certainly have
value, they can also be very deceptive as when natural disasters lead to expenditures that “enlarge” an
economy or when increased numbers of people test the environmental carrying capacity of a nation or region.
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The concept of sustainability itself is an attempt to separate well-being from consumption and growth. It
implies the application of a Triple Bottom Line approach referenced in relation to Actions 110 and 111, above.
The term Triple Bottom Line was coined by John Elkington in his 1998 book, Cannibals with Forks: the Triple
Bottom Line of 21st Century Business. According to Elkington, the triple bottom line takes in account:
Economic Sustainability, which refers to the management of resources to maximize long-term profits,
thereby increasing economic security.
Social Sustainability, which refers to the management of resources to ensure long-term positive social
and cultural development, thereby strengthening and increasing the security of social and community
systems.
Environmental Sustainability, which refers to the management of resources to ensure the long-term
37
carrying capacity of natural systems, thereby increasing environmental security.
The concept acknowledges that society, economy, and environment interact constantly. It is now being used
by many communities to help manage these same three bottom lines through their sustainability plans.
The implementation of a more comprehensive approach to measuring welfare is being directly addressed by
ongoing efforts to develop the Genuine Progress Index (GPI). The use of the GPI has been strongly
advocated by some contacts in the ICSP process. The organization GPI Atlantic has been developing a
version of the GPI specifically for Atlantic Canada since 1999 taking into account measures of time use, living
standards, natural capital, human impact on the environment, and human and social capital. As part of this
effort, researchers at CBU began working on data gathering with the community of Glace Bay in 2002,
completing a community profile report in 2008.
The value of this GPI work is undeniable; however, we are concerned in the short-term with the challenge of
data collection. Sustainability indicators need to be relevant to the diverse circumstances in each community
and considerable valuable data is now readily available from government statistical sources, which we have,
Section 3.0Table 10.1
for example, used extensively in , above. provides a compendium of basic data
related to CBRM’s ICSP Goals that is readily available for CBRM (as opposed to other data that is only
available at the provincial or national levels). Available data, as the table suggests, have become much richer
in recent years, particularly since the advent of the Internet and improvement of government Web sites
providing information. At least three-quarters of the data items listed are currently available without charge on
Internet sites either in manipulable on-line databases or in PDF files that can be downloaded and converted to
Excel or similar formats. Most are also available for other Nova Scotia municipal units, which facilitates
comparison and ranking.
37
International Council for Local Environmental Initiatives, Triple Bottom Line Tools for Embedding Sustainability
into Council Operations, 2007, http://www.iclei.org/fileadmin/user_upload/documents/ANZ/Events/
Accelerating/OnlineDiscResources/EmbeddingTBLTools.pdf.
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Particularly notable sources are Statistics Canada and the Census of Canada, Service Nova Scotia and
Municipal Relations, and Tourism Nova Scotia, as well as CBRM itself. Statistics Canada and the Census are
primary sources of demographic and labour force information. Most of this information is very reliable;
however, Census data is only collected at five-year intervals in the first and sixth year of each decade,
although Statistics Canada provides interim estimates for some measures. An increasing array of data is also
available from the Province of Nova Scotia. The Province’s vital statistics publication, for example, provides
an annual compilation of births and deaths, including deaths by cause that supplements and adds detail to
Census data by municipal unit and year. The Provincial Municipal Statistics publication, which is the basis of
Subsection 3.9,
our ranking of municipal expenditures and revenues in above, is also a very good
compendium of information that has become more useful over the last five years as Service Nova Scotia and
Municipal Relations has issued a PDF version. Its information is complemented by the Municipal Indicators
database maintained by Service Nova Scotia, which provides similar data that can be selected and sorted on-
line without additional software. Finally, Tourism Nova Scotia has for many years published annual reports the
tourism industry for which considerable data is broken down by region.
CBRM can supplement this data from its own operations with financial data, data quantifying its infrastructure
and operations, and data compiled from permitting processes such as development and building permit
numbers, which all municipalities are required to compile for Statistics Canada. This information can be
Table 10.1
compiled reasonably easily from year-to-year. The list in , furthermore, is by no means exhaustive.
Additional data is available from sources such as Canada Mortgage and Housing, real estate boards, and
organizations such as Destination Cape Breton, and is well worth investigating. More detailed information can
also be obtained from Statistics Canada for charges that depend on the number of geographic areas and data
categories required. Similar data is also available for free from the Community Counts database being
developed by the Provincial Department of Finance.
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Table 10.1 CBRM Suggested Sustainability Indicators
Sustainability Goal Indicator Data Source
% of seasonal workers Statistics Canada
Self-sufficiency
Rank of municipal expenditure per capita Service Nova Scotia
To increase the role of local
Rank of municipal revenue per capita
Service Nova Scotia
products, services, and
creativity in the growth of Municipal debt ratio
CBRM
CBRM’s economy and
Commercial assessment Service Nova Scotia
society.
Uniform assessment Service Nova Scotia
Vibrancy
Number of community volunteers CBRM
To create lively communities
% of residents engaging in healthy physical activity CBRM
offering places and events
to engage citizens and Number of new immigrants Statistics Canada
visitors in the rich culture
Number of new immigrants staying for longer than 3 years Statistics Canada
and creativity of CBRM.
Jobs created
Economic Reconstruction
Statistics Canada
Labour force participation rate
To build a strong, stable
Statistics Canada
economy to provide
Unemployment rate
Statistics Canada
rewarding employment for
Income per capita
citizens and the wealth
Statistics Canada
Number of buildings being reused /redeveloped
required to preserve and
CBRM
sustain CBRM.
Employment by industry and occupational group Census of Canada
Female participation rate Census of Canada
Diversification
Youth (15-29 years) participation rate Census of Canada
To pursue available and
Fish landings DFO
realistic opportunities to
grow a productive and
Agricultural production Census of Agriculture
varied economy in CBRM.
Farmers Market visitation TBD
Retail sales Statistics Canada
Coastal Location
Investment in Port of Sydney Port of Sydney
To take advantage of
CBRM’s unique location on
Employment at Port of Sydney Port of Sydney
the North Atlantic as a
Employment in transportation and related industries Census of Canada
source of wealth, an
% of wastewater treated CBRM
advantage for export, and
an attraction to visitors.
Area of Green space lost to development
CBRM
Area of agricultural land lost to development CBRM
Environment
% of Green Space connected CBRM
To preserve and enhance
Area of sensitive land protected CBRM
the pristine environment of
Number of brownfield sites being remediated
CBRM
CBRM as a key element of
CBRM’s economy, an
Number of Watershed Plans developed
CBRM
attraction to visitors, and a
Percentage of pervious surface within watersheds CBRM
legacy to future generations.
Average household water consumption CBRM
Average household waste generated CBRM
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Table 10.1 CBRM Suggested Sustainability Indicators
Sustainability Goal Indicator Data Source
Average household electricity consumption Nova Scotia Power
Quantity of renewable energy generated in CBRM Nova Scotia Power
Cultural Heritage
Number of cultural events
To be determined
To cultivate and promote the
Number of visitors to heritage sites, museums
artistic, musical, and cultural
Nova Scotia Tourism
Number of visitors to public art exhibits/displays
accomplishments of CBRM
To be determined
residents as a basis for
Number of visitors to concerts and other cultural events
To be determined
social and economic as well
as cultural development.
% of population 15 to 29 years Statistics Canada
Excess of births over deaths NS Vital Statistics
High school drop-out /graduation rates CBRM
Marconi Campus graduation numbers NSCC
Quality of Life
Cape Breton University graduation numbers CBU
To enhance the economic
Transit Cape Breton/Handi-Trans Ridership CBRM
and social well-being of
current and future % of persons sharing rides to work Statistics Canada
generations and
% of persons using public transportation Statistics Canada
communities in CBRM.
% of persons biking/waking to work Statistics Canada
Deaths by cause NS Vital Statistics
Perceived health (by Health District) Statistics Canada
Activity during leisure time (by Health District) Statistics Canada
Fixed roof accommodation occupancy rates/room nights sold Nova Scotia Tourism
Tourism
Campground occupancy rates/site nights sold Nova Scotia Tourism
To position CBRM as a
Cruise ship passenger visitors
Nova Scotia Tourism
world class tourist
destination by promoting its
Airport enplanements
Nova Scotia Tourism
culture and environment.
Visitor inquiries and visitor information centres Nova Scotia Tourism
The use of this existing local/national data will comprise a significant part of data collection in a sustainability
indicators program. Data tend to be deficient with respect to community attitudes and satisfaction, personal
activities, and aspirations. A major component of GPI research is a questionnaire administered to community
members to obtain information on a broad range of factors, including time budgeting, life stress, and
satisfaction with their community. We feel at this point, the data collection effort to obtain these measures
CBRM-wide is too great to be applied to the monitoring of this ICSP in the short-term. UCB contacts have
however indicated a willingness to assist with such an effort and we feel that a partnership to achieve this
would be very much in the interest of CBRM. Depending on the context, many indicators can be applied but
38
experience has shown a small set of carefully selected indicators to be most effective.
38
Lisa Segnestam, Indicators of Environment and Sustainable Development Theories and Practical Experience,
Paper No. 89, Environmental Economics Series, World Bank, 2005.
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10.2.2 Action Mapping Updates
The ICSP should be treated as a working document to be used as a tool for managing short-term Actions on
the path toward actualizing the community’s medium-term sustainability Goals and long-term sustainability
Vision. The monitoring of municipal indicators is a complementary step to the primary objective of ICSP
review, which is to assess and carry out the Priority Actions proposed in the ICSP. The primary technique to
review proposed actions is a process called Action Mapping. Sessions for Action Mapping should be held
annually to review and reflect on the community’s sustainability Goals, Vision, and Actions. The primary
purpose of each annual Action Mapping session will be to identify Priority Actions for implementation in the
upcoming year. Many Actions will require more than one year to be fully implemented. Timelines and
resource needs will therefore also be considered for each Priority Action that is selected.
Annual Action Mapping sessions should be scheduled well in advance, and would ideally be undertaken
concurrently with an annual budgeting process in which work plans are reviewed and resources are allocated
for the following year. Potential participants in these sessions include the ICSP Implementation Committee,
municipal staff, and members of stakeholder groups and the public. The sessions can take the form of a
workshop or status review and can be structured around the following key questions developed by The
39
Sheltair Group, which joined Stantec in 2009:
10.2.2.1 Question 1: Is the Action warranted given the status of the Goal?
The ICSP outlines the community’s end-state Goals. It is strategic to focus efforts and resources on those
Goals that require attention most urgently. The following questions can be asked to help assess the situation
for each Goal in the ICSP, with affirmative answers strengthening the case for designating the Action as a
Priority for the upcoming year:
Is the community close to achieving the Goal?
Are trends generally in the right direction?
Are external forces threatening to undermine the Goal in the near future?
Is there an exceptional opportunity for intervening that may disappear in the near future?
The Action should be allocated to the medium or long-term if it is not deemed to be warranted in the short-
term.
10.2.2.2 Question 2: Is this an appropriate type of Action?
This question refers to the importance of maintaining the right mix and sequencing of policy tools. One of the
best rules for managing change is to focus on what is already beginning to work well. Even if successes are
39
The Sheltair Group (now Stantec), Visions to Action: City of Rossland Strategic Sustainability Plan, Draft, 2007.
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very small, they constitute ‘seeds of success’ that help to create the momentum and constructive attitudes
essential for positive overall change. Four sub-questions should be considered:
Does this Action still work in concert with other Actions?
Does the Action conflict or not fully complement new or changed policies of CBRM or senior governments
(e.g., amended MPS policy or new environmental legislation or regulations)?
Has the critical path changed, making this Action more or less important to other activities?
Have new opportunities emerged that should be addressed, and that may require changes to the Action?
The Action should be revised or improved to better fit current circumstances as necessary. If circumstances
have changed sufficiently, it may make sense to drop the Action, possibly replacing it with a new initiative,
particularly if the Action conflicts with a new policy direction chosen by the Municipality.
10.2.2.3 Questions 3: Can the work and expense be shared with others?
This question refers to the potential for leveraging municipal time and funds by engaging outside people and
partner or funding agencies. The following questions should be evaluated:
Is a champion available who can lead the charge?
Is there an executive team to support the champion, and get the work done?
Is there a potential partner or funder that can contribute financial or other resources?
The answers to these sub-questions will determined if the Action should be implemented in concert with
partners or using municipal staff and resources.
These three questions and their sub-questions will help CBRM to re-establish priorities each year and
manage change adaptively. While this approach is especially structured for use by Regional Council, the
ICSP Implementation Committee, and staff, it should also be valuable for partners and the public.
Participants in Action Mapping should base their responses on consideration of information/outcomes from
the following sources:
The most recent ICSP Progress Report (including Plan Implementation Review and Indicator Review and
Section 10.2.3
Update) (see )
Section 10.2.5
The most recent Five-Year Plan Review and update (if applicable) (see )
Section 10.2.4
The most recent Annual ICSP Community Meeting (see )
Input from project partners and all other stakeholders (i.e., public input)
New research.
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Considering the information/outcomes contributed by the above sources will ensure that the Action Mapping
process takes into account what has and has not been accomplished over the previous year, successes and
challenges, lessons learned, and so on.
The results of the annual Action Mapping session will be compiled into an annual Priority Action
Implementation Table that will guide and track implementation for the upcoming year. As The Natural Step
Canada’s sustainability planning guide explains, “the desired outcome of creating an action implementation
table is to outline schedules, accountabilities, resource allocations, performance indicators and targets that
40
Table 10.2
will act as a quick-start action plan.” provides a simple Priority Action Implementation Table
template that can be organized in a variety of different ways.
Table 10.2 Priority Action Implementation Table Procedure
Identify Action
Specify who is responsible for implementing the Action,
including any party that will be playing a supporting role, if
Who
applicable. (e.g., Municipal department, Council committee,
partner organization, individual)
List the major tasks or activities involved in implementing
Tasks/Activities
the Action
Schedule
Note the Action implementation schedule/timeline
Budget/
Indicate what budget and resource allocations are
Resources
necessary to implement the Action
Track the progress of implementation
In some cases, this will simply be a blank cell that can be
checked when the action is completed. In other cases, this
Tracking
cell will record the results of sustainability indicators and
progress toward achieving sustainability targets.
Source
: A., P. Boisvert, et al.,Planning for Sustainability: A Starter Guide, 2009
40
A., P. Boisvert, K. Leung, C. Park Mackrael, and M. Purcell. Planning for Sustainability: A Starter Guide, The
Natural Step Canada, 2009.
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10.2.3 Annual ICSP Progress Report
Reporting is the most critical element of the monitoring and evaluation process. A report is a key vehicle
through which progress towards sustainability is communicated, informing the community and providing the
information on which to base meaningful decisions regarding what is working, what needs to be improved,
and how to move forward.
The review of indicators and Action Mapping processes described in the preceding two subsections will
provide the basis for an annual ICSP Progress Report. Responsibilities for report preparation will be
delegated through Implementation Committee to appropriate municipal staff. The report may include some or
all of the following components:
An Annual ICSP Implementation Review consisting of:
Section 10.3.1
The Action Mapping Update (see )
Priority Action Implementation Table from the preceding year
An Action Inventory organized according to overarching Goals, that summarizes which Priority Actions for
that year were implemented either fully or partially, including details regarding who implemented each
initiative and descriptions of each program
A summary of which Priority Actions for that year were not implemented, including an explanation of why
not, when they will be implemented in the future, and how/when they will be revised/updated (if
necessary)
Key implementation successes and challenges
Revisions/updates to implementation tools as necessary
Review of funding sources
Lessons learned.
An Annual Indicator Reporting Review and Update consisting of:
Information on selected indicators to measure sustainability progress, conveyed as a Sustainability
Table 10.3
Report Card (see example in ).
Key sustainability successes and challenges (as reflected by changes in indicators with respect to earlier
Sustainability Report Card results, including baseline results)
Evaluation of sustainability indicator results against Priority Actions implemented during the year
Revisions/updates to existing indicators and/or data gathering systems as necessary
Review of funding sources
Lessons learned.
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The report should be made publicly accessible through posting of a downloadable file on the Internet and
distribution to publicly accessible locations such as the Civic Centre, recreation and service centres, and
public libraries. If feasible, it may be beneficial to create a summary in brochure form for wider circulation.
Table 10.3 Sample ICSP Report Card, City of Hamilton, Ontario
2003 2004 2008
LOCAL ECONOMY
Rate of Participation in the Labour Force
AGRICULTURE AND RURAL ECONOMY
Number of Hectares of Agricultural Land Lost due to OP Amendments
NATURAL AREAS AND CORRIDORS
Cumulative Area of Significant Natural Areas Protected
IMPROVING THE QUALITY OF WATER RESOURCES
Total Loading of Ammonia in Hamilton Harbour
Total Loading of Phosphorous in to Hamilton Harbour
Total Water Consumption for All Uses
Number of "All Beaches Open for Swimming" Days
REDUCING AND MANAGING WASTE
All Solid Waste Generated
CONSUMING LESS ENERGY
Average Residential Electricity Consumption
IMPROVING AIR QUALITY
Ground Level Ozone criteria (O ) hours Exceeding 50 ppb 3
Annual Average Sulphur Dioxide (SO ) Concentration 2
Annual Average Nitrogen Dioxide (NO ) Concentration 2
Annual Average Inhalable Particulate matter (PM ) Concentration 10
Annual Average Respirable Particulate Matter (PM ) Concentration 2.5
N/A
Hospitalization Rate for Respiratory Illness per 100,000 People
CHANGING OUR MODE OF TRANSPORATION
Transit Ridership Per Capita
Number of Cars Per Capita
LAND USE IN THE URBAN AREA
Number of Residential Units with Permits in the Downtown Core Area
ARTS AND HERITAGE
Number of Visits to Historic Sites, Arts Venues and Museums Per Capita
PERSONAL HEALTH AND WELL-BEING
Number of Low Birth Weight Babies Born Per 1000 Live Births
Hospitalization Rate for Falls by Persons 65+ Years
Rate of Mortality due to Heart Disease
SAFETY AND SECURITY
Number of Robberies
Number of Pedestrians and Cyclists Injured by Motor Vehicles
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Table 10.3 Sample ICSP Report Card, City of Hamilton, Ontario
2003 2004 2008
EDUCATION
Number of Adult Education High School Equivalency Diplomas Granted
Percentage of Grade 3 Students Performing at Levels 3 and 4
COMMUNITY WELL-BEING AND CAPACITY BUILDING
Number of Community Contacts at Volunteer Hamilton
Shelter Occupancy Rate “On Any Given Night” in November
10.2.4 Annual ICSP Open House/Community Meeting
An annual ICSP Open House and Community Meeting should be held to present the ICSP Progress Report
and, through it, the status of implementation. The sessions should highlight and celebrate successes,
increase awareness, inspire new ideas, and keep community members engaged and excited about the
process. The sessions should provide opportunities for:
Increasing civic pride among CBRM residents
Enhancing CBRM’s reputation to external observers
Networking, developing new partnerships and identifying opportunities for collaboration
Economically benefiting the community (e.g., procurement practices used for the event can support local
and “green” businesses; publicity surrounding the event can attract tourism; enhanced local reputation
can lead to increased opportunities for local businesses, external investment, etc.).
The annual event may also include some or all of the following:
Speeches made by keynote speakers on various sustainability topics to promote education and
engagement
Presentations to keep the public informed regarding Actions that have been implemented, progress that
has been made, key successes, and next steps
Forums for citizens to share their experiences of how the ICSP process has affected them and/or how
they have contributed to Vision and Goals (e.g., initiatives/actions at the individual, household,
organizational, and/or neighbourhood level)
Workshops exploring sustainability examples from other municipalities and how CBRM can learn from
their experiences and best practices
Sustainability-themed performances by local students, musicians, and/or theatre groups
Displays of sustainability-themed art contributed by local students and/or artists
Paper or poster presentations by students on general sustainability topics and/or ICSP-specific topics
Consultation sessions for public feedback regarding the ICSP implementation process
Interactive such as contests, charrettes, workshops, etc.
Recognition of exemplary local sustainability leaders/champions and/or initiatives.
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10.2.5 Five-year Plan Review
The annual process of progress reporting will effectively provide an interim review of the ICSP. In the initial
years this may mean significant refinement. Over the longer term, the ICSP should be thoroughly reviewed,
updated, and revised in a similar manner to a municipal planning strategy. This process should encompass
the entire ICSP, including associated goals, policies, progress indicators, and implementation programs, and
should be supported by in depth public consultation and engagement. We would suggest that the first
complete review of the ICSP take place within five years of its adoption. Based on experience implementing
Table 10.4
and managing the plan, it might be reviewed every five years after that. providesa potential
implementation schedule for the ICSP.
Table 10.4 Implementation Schedule
Task Timeline
Form ICSP Implementation Committee
April 2010
Regular ICSP Implementation CommitteeMeetings
Quarterly
Corporate Sustainability Training Program
2010-2011
Prepare Community Engagement Plan
June 2010
Establish Indicator Report Baseline Data
September 2010
Develop Action Mapping Implementation Table
2010
Indicator Review and Update
March 2011 (Annually thereafter)
Action Mapping Review
April 2011 (Annually thereafter)
Annual ICSP Report Update
May 2011(Annually thereafter)
Annual ICSP Community Open House/Meeting
June 2011 (Annually thereafter)
Add Citizen Appointees to ICSP Implementation Committee
June 2011
Plan Review and Update
2015 (Every five years thereafter)
2010-2015
Alignment of Programs, Policies and Plans
Repeat as necessary with Plan Review
and Update
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aPPENDICES
11.0 APPENDICES
APPENDIX A ICSP Web Survey, Response Summary, February 15, 2010
APPENDIX B Sustainability Submissions, Spring 2009
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APPENDIX A
ICSP Web Survey, Response Summary, February 15, 2010
CAPE BRETON REGIONAL MUNICIPALITY ICSP SURVEY
The following tables present the compiled results of the Cape Breton Regional Municipality ICSP
Survey, which was provided on the CBRM ICSP Web site from January 4 to February 8, 2010. In total,
159This return provides a confidence interval of 7.8 per
the survey obtained usable responses.
cent 19 times in 20.
As not all respondents answered every question, confidence intervals for some
questions may be greater than this interval (i.e., less reliable).
The following summary presents quantitative results for all questions in the order that they were posed
in the survey questionnaire along with question text and instructions, and bar charts and pie charts
illustrating results. We have also included all comments received. Comments are provided verbatim
with the exception of corrections for spelling, and obvious typographical and grammatical errors.
Survey results will be used, along with input from interviewing and other consultation processes, as a
basis for developing recommendations for incorporation in the ICSP Report.
The three winners of the draw for $100 dinner gift certificates have been selected and they are being
Congratulations to these three responding and thank you to everyone who helped the
notified.
ICSP process by participating in the survey.
- February 15, 2010
CAPE BRETON REGIONAL MUNICIPALITY ICSP SURVEY
1.When you think of sustainability, what words or phrases immediately come to mind?
[Please choose all that apply]
The average respondent selected more than 10 items from a given list of phrases and words that came
to mind when thinking of sustainability. The majority of the 142 people responding indicated that it
brought to mind the present and the future (79%), the economy (72%), environmental protection (68%),
and preserving opportunities for youth (64%). Most of the terms reflected something positive – a shift
toward a better environment, economy, and/or society. A small minority of respondents associated the
term “sustainability” with a shift in a negative direction such as, “changes to the way I live that are hard to
make” (9%), “just a buzz word” (6%), “conditions that make it more difficult for business” (4%), and “a
less comfortable life” (2%).
CAPE BRETON REGIONAL MUNICIPALITY ICSP SURVEY
Twenty-four respondents offered comments that reflect the meaning of sustainability in their own words.
Comments included:
A community rich in diversity, opportunity and natural environment
A frame of mind; An active choice; Important and integral; A collaboration; A responsibility; A
necessity; A green future; Engaged citizens and communities; Heritage
Access to services
Active
Balancing the needs of today with the needs of the future.
Community as culture
Consistency
Cooperation, community empowerment, a well informed community
Environmentally and economically sound
Focuses on increasing the efficiency of our natural resources, through natural building, and natural
materials that are available locally. Reducing impacts on human health and the environmental
protection through siting, design, construction, operation, maintenance, and "green building".
Food Security, Renewable Energy, Practice
Healthy living communities. Creating an environment in which physical activity and active
transportation and environment are front and centre.
Improved education levels
Keeping services even in times of declining population
Lifelong learning
Management - if you are planning , then it has to be clear who is doing what to mange the plan
Peace of Mind for the future of our children living in our community
Preservation of the past. Cooperation before competition. Education about more than how to make
money. Finding a place for everyone to contribute, despite age. Teaching useful skills, such as
woodworking or welding, so that we can do things for ourselves. Local purchase program for the
municipality.
Prosperity
Renewable Energy, Geo Thermal Heating/Cooling, Shipping Container Houses
Security
Self-sufficiency, renewable resources
Sustainability to me is being able to sustain a healthy, prosperous community over the long term.
Sustainable tourism, economic development
The ability to continue and prosper; socially, environmentally and economically
Volunteers
Working together - better communication between groups, communities and government
2.Looking 20 years into the future, how would a sustainable CBRM be different from the situation
today? What would indicate to you that progress has been made toward achieving sustainability?
[Select all that apply and/or add your own items.]
For respondents, indicators of future progress included more young people in CBRM (82%), more
community participation (73%), more services available locally (70%), more SMEs based in CBRM
(69%), more cultural opportunities (69%), cleaner rivers and streams (69%), and more employment
(67%), among others. The 136 respondents identified 1,741 indicators of success toward achieving a
sustainable CBRM (average of 12.8 indicators).
Twenty-three respondents offered their own words on other indicators of success in moving toward
sustainability. These included:
A realistic but positive outlook in our leaders
Better educated workforce
Better financial situation both for the individual and for government and business
Bigger university; more foreign students; more students from off-island; greater economic impact
from a larger university presence.
CBRM can stop believing that immigration is the key, when emigration is the actual hurdle needing to
be faced.
Central areas which encourage walking, social interaction
Community Energy budgets, Balanced community generated power/consumption
Development of tourism as an industry; better quality of life
Economic stability and balance
CAPE BRETON REGIONAL MUNICIPALITY ICSP SURVEY
Effective public transit system
Found ways to encourage more volunteers to be involved!
Good recreational facilities
Higher density housing alternatives
It would be nice to know what is happening (successes/ failures of goals) in other communities in the
CBRM
Less litter on the streets would show a greater self-respect on the parts of citizens. Why should we
respect the world around us? Education.
Manufacturing shift to renewable energy components. Awareness campaigns, incentives, employee
discounts
More active role in physical fitness in the environment. Bike lanes on roads. Bicycle trails along the
coast line to encourage more active family involvement/sight seeing. More tolerance for the animals
and wild life we have. More acceptance of change within the CBRM. Sight seeing Tour operators on
the waterfronts, more zoning of restaurants along the waterfront for tourism. Encourage solar hot
water for heat. Build with non-polluting, non toxic, recycled and renewable materials ONLY! Building
of only WOOD when possible. Encourage non-toxic paints and finishes on houses, encourage
"greywater treatment systems"....Yes, encourage "Green building"
More cooperation between elected officials and more cooperation between community leaders
More focus on shaping Cape Breton first.
more local agriculture, naturalized urban spaces,
More production of our foods and other consumer products.
Move CBU onto revitalized Tar Ponds site. Make it a world leader in environmental education. The
future is one of energy independence, how can CBU contribute to that goal?
Not "more" but living within our means as a community
not really, but I would say our rivers and streams are not that dirty in CBRM, also we have little or no
air pollution compared to other places, we have lots of wildlife (deer, fox, eagles, songbirds, etc, etc)
and lots of natural areas (although they may not be designated parks), we have lots of biodiversity,
and we have lots of services - we don't really have to go off Island, some of us just think we do!
Stable population is checked off, by no means do I feel we will be better in 20 years if we just stop
the current bleeding (stabilization) of our youth. We should stabilize the population only after we
return to the statistics of the 70's when we had 1000's of higher paying jobs this would be a god point
to stabilize and grow from there.
The CBRM would be receiving a higher portion of the federal equalization dollars from the provincial
government. The arts scene would be more vibrant and better funded locally.
Time for Family- slow down everything doesn’t need to be open 24 hours a day 7 days a week. Plan
ahead for your evening or day have a sustainability plan for your life.
Walking and hiking trails
3. CULTURAL SUSTAINABILITY refers to our local arts, culture, and heritage assets and what we
need to do to keep and protect these for the future.
Please indicate your 5 highest priorities for Cultural Sustainability Planning in CBRM by numbering them
in order from 1 (Most Important) to 5 (Least Important of your 5 choices). Please do not allow ties (where
two or more items are given the same priority) and choose five items only for each question.
CAPE BRETON REGIONAL MUNICIPALITY ICSP SURVEY
Priorities for CULTURAL SUSTAINABILITY in CBRM (n=120)
Promoting Cape Breton's history
4%7%5%5%4%
Preservation and promotion of Cape Breton's multicultural heritage
3%2%8%12%5%
Preservation and promotion of our Celtic culture
3%3%5%6%4%
Promoting our crafts
1%1%3%1%3%
Promoting our music
3%7%8%5%4%
Promoting our diverse culture
3%3%3%5%2%
Encouraging participation in local government
8%7%7%7%8%
Encouraging community volunteerism
4%5%6%7%4%
Encouraging community groups
5%8%6%5%8%
Protecting our rural areas
6%3%6%4%8%
Improved facilities for cultural and artistic activities
10%8%5%8%3%
Promotion and preservation of arts and culture
8%6%4%8%9%
Preserving CBRM’s sense of place
4%7%4%3%6%
Cataloging, preserving and protecting heritage buildings
8%3%8%5%11%
Encouraging more open and tolerant communities
8%8%4%1%3%
Encouraging community/cultural festivals and events
7%8%9%4%9%
Supporting community halls and organizations
1%7%3%5%1%
Supporting community initiatives
13%11%7%10%8%
0%10%20%30%40%50%60%
Share of 1st Place RanksShare of 2nd Place RanksShare of 3rd Place RanksShare of 4th Place RanksShare of 5th Place Ranks
The figure above shows the number of first, second, third, fourth, and fifth place rankings assigned by the
respondents to each of the priority area. The chart also shows the relative number of rankings (of any
type from 1 to 5) assigned to the priority areas. Respondents were forced to limit their choices to only five
areas and rank among those five areas. Some, as a few comments reflect, considered this constricting
but it was done to force respondents to “budget” priorities among the options provided. The choices were
derived from research and interviewing undertaken early in the ICSP consultation process. Other
questions were developed from the same sources, in the same format for each of the ICSP pillars.
The following top five priorities emerged, based on the number of first place ratings selected:
Supporting community initiatives (13% of first place rankings)
Improved facilities for cultural and artistic activities (10% of first place rankings)
Promotion and preservation of arts and culture (8% of first place rankings)
Encouraging participation in local government (8% of first place rankings)
Cataloging, preserving and protecting heritage buildings (8% of first place rankings)
Encouraging more open and tolerant communities (8% of first place rankings)
The top five most often cited Cultural Sustainability priorities based on total rankings (i.e., any rank from
1 through 5) are:
Supporting community initiatives (48% of all rakings)
Encouraging community/cultural festivals and events (37% of all rankings)
Promotion and preservation of arts and culture (36% of all rankings)
Encouraging participation in local government (36% of all rankings)
Cataloging, preserving and protecting heritage buildings (34% of all rankings)
CAPE BRETON REGIONAL MUNICIPALITY ICSP SURVEY
The strongest priority areas are those that attracted both a high number of ranks of any type, and more
first place ranks. In this example, supporting community initiatives and “promotion and preservation of
arts and culture” was the clear leader with the most rankings and the most first place rankings).
4. Are there priority areas for CULTURAL SUSTAINABILITY PLANNING in CBRM that are not listed
above and are part of your top five?
[please specify and tell us their priority]
Survey respondents were also asked to identify cultural sustainability priority areas that they felt should be
included. The resulting comments were:
A National and International advertising program celebrating our heritage, natural environment and
culture funded from an Island wide hotel room tax.
Being known for our environmental activity (progressively "green"). Being recognized as a leader in
brownfield remediation, recycling, utilizing renewable resources for energy production, very
ecologically minded, green spaces.
CBRM has to start to work with the other municipalities
Community Art Galley
Cultural Sustainability Plan....not Cultural IMPROVEMENT plan. Grass roots initiatives not big
business solutions.
Encourage other national groups to present their cultural events
Generating our own power
I think one of the main things that the CBRM does not focus on is the retention of the young people
already in the area. This can only be accomplished by investing more money and time into activities
for youth. This does not mean building more sports arenas and rinks (we already have too many of
those). If we want to maintain a strong arts community, we have to invest in it.
I think we have to listen to our youth. We should also be investing more time and energy into
preserving and sustainably developing the downtown cores of small towns like New Waterford,
Dominion and North Sydney.
I would include libraries & museums as cultural facilities."
I'm not really "Up" on the cultural component of the 4 pillars. Although I am willing to learn and
recognize its importance. I think we have enough infrastructure (buildings) they should be better used.
It's easier to obtain money for a new building, but very hard for a community to maintain it!
More focus on the part we played in the wars (location right on the water).
people like to do things not just look at them, we need to encourage programs that allow participation
Producing our own food
Promote "national" (Cape Breton) pride. Grants for young artists. Magnet (arts) schools.
Promoting Cape Breton's Music and talent. Make CB the Music Capital of the Eastern shore.
Promoting cultural tourism
Recreational areas and hall to promote physical activities for all groups, seniors, teens
Separate the thinking of culture into hard products that we produce from the soft products of music,
the arts
Support for programs that raise awareness and appreciation of cultural expression of all kinds: diverse
approach that recognizes cultural value in natural, built environments, historic and contemporary
expression.
The ability to bring and keep youth within Cape Breton by offering them jobs
The linking of CBU into the community and after hour use of our education facilities. Improved
programming for cultural and artistic activities, we have existing facilitates, we just need to utilize them
better with improved programming.
The priority areas are listed above adequately but choosing five is unacceptable, unless you accept
these five priority areas as umbrella terms, serving to facilitate all of the other equally important areas.
All of these options are inextricably linked. Cultural sustainability planning in the CBRM will not be
successful without first providing a forum for new ideas/voices/ initiatives, listening to and engaging
with them, and then possessing a real civil obligation to make them happen at the municipal level.
The youth should be encouraged to partake in the arts and music scene through programs and
facilities devoted to these programs. Cape Breton youth would feel more connected to their
communities if they were encouraged to participate in it. Cape Breton youth should also be
encouraged to volunteer in their communities in any way possible.
There are no community gathering areas. Such areas in other municipalities contribute to all of the
priorities above.
Use cultural asset mapping to identify key cultural assets and develop municipal cultural plan
We need to be able to show big acts in with the right facilities
CAPE BRETON REGIONAL MUNICIPALITY ICSP SURVEY
5. ECONOMIC SUSTAINABILITY refers to how well the economy is functioning, setting up conditions
that will allow there to be enough jobs in the future at which people can make a comfortable living.
Please indicate your 5 highest priorities for Economic Sustainability Planning in CBRM by numbering them
in order from 1 (Most Important) to 5 (Least Important of your 5 choices). Please do not allow ties (where
two or more items are given the same priority) and choose five items only for each question.
Priorities for ECONOMIC SUSTAINABILITY Planning (n=108)
Supporting small business start-ups or growth
11%6%12%7%7%
Developing energy and alternative energy opportunities
6%9%11%7%13%
Developing tourism
6%6%6%6%8%
Developing the Port
19%15%7%6%4%
Encouraging environmentalism in new business starts and business
1%2%6%6%6%
expansion
Leveraging the tools, skills, and know-how developed from the steel
0%0%2%3%2%
plant clean-up
Investing in and promoting our natural resources
4%6%2%3%4%
Investing in and promoting by-products of our mining heritage
0%0%1%0%1%
Investing in and promoting mining resources
1%1%3%0%0%
Promoting “buy local” initiatives
7%7%3%12%5%
Investing in “green” businesses
8%2%8%6%5%
Investing in local businesses
4%6%7%13%5%
Investing in new infrastructure
1%4%2%2%3%
Improving existing infrastructure (roads, water and sewage)
8%7%8%4%6%
Increasing tourism growth and opportunities
2%5%5%6%7%
Reducing poverty in CBRM
4%5%6%6%10%
Diversifying the CBRM economy
12%9%8%6%6%
Attracting business investment from outside of CBRM
6%10%4%6%9%
0%10%20%30%40%50%60%
Share of 1st Place RanksShare of 2nd Place RanksShare of 3rd Place RanksShare of 4th Place RanksShare of 5th Place Ranks
Economic Sustainability
The Priority areas for with the most first place rankings are:
Developing the Port (19% of first place rankings)
Diversifying the CBRM economy (12% of first place rankings)
Supporting small business start-ups or growth (11% of first place rankings)
Improving existing infrastructure (roads, water and sewage) (8% of first place rankings)
Investing in “green” businesses (8% of first place rankings)
CAPE BRETON REGIONAL MUNICIPALITY ICSP SURVEY
Economic Sustainability
The top five most often cited priorities (by total rankings) priorities for are:
Developing the Port (52% of all rankings)
Developing energy and alternative energy opportunities (46% of all rankings)
Supporting small business start-ups or growth (44% of all rankings)
Diversifying the CBRM economy (43% of all rankings)
Investing in local businesses (36% of all rankings)
6. Are there priority areas for ECONOMIC SUSTAINABILITY PLANNING in
CBRM that are not listed above and are part of your top five?
[please specify and rate their priority]
Survey respondents were also asked to identify Economic Sustainability priority areas that they felt should
be included. The resulting comments follow:
A go-forward plan to involve all eight communities in the CBRM in a common goal for growth 1+.
Culture-based businesses
Decentralization is required
Decentralization of Government.
Downtown preservation & revitalization
Encouraging innovation
Entrepreneurship promotion and funding
Examine opportunities to "produce" here, for local use and exports.
Great question, its tough to pick 5. I hope attracting business investment from outside of CBRM
includes relocating/establishing Federal, Provincial and Atlantic (joint provincial opportunity)
government jobs.
Higher wages that are competitive across Nova Scotia so people don't have to move away in order to
live and raise a family
I loved the old “Think Cape Breton First” initiative
Identify what we actually produce and can export
I'm interested in the 'greener' way of doing things from now on, in the CBRM – pretty much covered in
#6.
I'm not understanding these questions. Are you asking if CBRM should develop, invest, reduce
poverty. For example, I think the Port development is a good idea. But CBRM should not be
developing the Port, they should be supporting an environment where Port improvements will be
initiated by private and all government sectors.
Improving the image of CBRM as a whole and its council and councils reputation and decisions
Increase population
Invest in education (quality schools, public libraries, literacy) - a literate community will have long term
economic impact through better jobs, skills, etc. I would rate this very near the top.
Investing in local food production
No need to promote buy local if the local choices are satisfying. Simply encourage interesting
business opportunities by local entrepreneurs.
No need to worry about poverty in CBRM if there is sufficient education, “sufficient” being 9/10 on a
scale of bad/excellent. Right now, 4/10."
Planned communities which maximize infrastructure/public transit/green space - reduce suburban
sprawl.
Procure the transfer of a Federal Gov. Dept. to C.B. and Provincial Government offices as well.
Provincial Government decentralization.
Purge the politics out of regional council.
Sewage treatment is a huge issue. No tourist wants to come to a beach or harbour they can't swim in.
Investing in small local business well also have a huge impact on creating a more vibrant and diverse
shopping experience for tourists. Tourists don't want to shop at Wal-mart and Future Shop and CBers
have great ideas for businesses they just need encourage and support.
Shifting away from urban sprawl is a pillar of economic sustainability. People don't like to live in car
based, mall centered communities. Sprawl creates a community like hundreds of others across North
America. Plenty of studies have shown how sprawl destroys the economic viability of municipal
government. When people can work, live and shop in close proximity, viable public and active
transportation networks become possible and you create a people centered built environment instead
of a car centered one. Sustainable housing for low/moderate income families
The right type of sustainability planning - a better economy (read: green, local, long term, small
business), a healthier environment, higher education, and the promotion of sustainable community
and arts, culture and heritage initiatives will ALL contribute to reduce poverty in CBRM. This is basic
CAPE BRETON REGIONAL MUNICIPALITY ICSP SURVEY
community, human and urban planning.
To create more opportunities to attract and keep youth in Cape Breton
We need to think of us and ours first. Yes we struggle and a little struggling is good. Comfortable living
is not luxury living and that's where the confusion seems to exist. Back to grass roots....what sense
does it make for a parent work for $10.00 -15.00/hr leave their children to be raised by someone else
and pay almost 2/3 of that paycheque toward child care? Our community would be more sustainable if
that child were raised by their parent and nurtured to be a productive member of the sustainable
society we are planning for them.
7. Please indicate the three opportunities that in your opinion can do the most to support CBRM's
economic sustainability by numbering them in order from 1 (Most Important) to 3 (Least Important
of your 3 choices).
[Please do not allow ties (where two or more items are given the same priority) and choose three items
only.]
Opportunities that can do the most to support CBRM's
economic sustainability (n=108)
Leveraging skills and technology developed as part
1%2%13%
of the Sydney Tar Ponds cleanup
Our natural resources
6%7%9%
Our available land holdings
0%0%5%
Expanding entrepreneurship and our existing
20%18%10%
commercial base
Alternative Energy
20%14%15%
Leveraging our centres of education (e.g., Cape
Breton University and the Nova Scotia Community
9%20%19%
College)
Development of the Donkin Mine –Xstrata’s project
2%5%5%
Investment in the tourism sector
8%19%11%
Development of Sydney's Port
33%16%13%
0%10%20%30%40%50%60%70%
Share of 1st Place RanksShare of 2nd Place RanksShare of 3rd Place Ranks
Economic Sustainability
The top opportunities identified for include:
Developing the port (33% of all first place rankings and just over 60% of all rankings)
Alternative Energy and “Expanding entrepreneurship and our existing commercial base” (tied with
CAPE BRETON REGIONAL MUNICIPALITY ICSP SURVEY
20% of all first place rankings and just under 50% of all rankings).
“Leveraging our centres of education” was not considered as strongly among the first priorities, but it
attracted the largest share of second place rankings and attracted rankings from nearly 50% of all
respondents to this question.
8. Please indicate any additional ideas not mentioned above that you believe can make a significant
contribution to supporting CBRM's economic sustainability.
Other goals in support of economic sustainability included:
A goal of self-sustainability - small, local, green businesses, downtown and in small neighbourhoods.
A strong CBRM Council - united in promoting CBRM
Alternative energy applies to wind energy potential in the East bay and Boisdale Hills
Although Xstrata didn't make my list, it would be worth to have a chat with Xstrata Mgmt to see what
else could be done in Cape Breton, could other divisions of Xstrata be relocated here, could we do
some other manufacturing/service/processing here? This should be done with all publicly listed
companies that have established a presence in Cape Breton - pulp mills, call centers, NSP, Aliant, car
plants...etc
As repeated, keep and attract youth
CBRM is legally entitled to $120 million yearly from the Province
Changing zoning laws!
Completion of the Fleur de Lis Trail between Louisbourg and Gabarus
Decentralize government departments from Halifax.
Equalization Fairness
Have more integration will the rest of CB
I could not find the two most important opportunities listed here. These would be the young arts
community and the transfer payments of equalization dollars from the provincial government to the
municipality.
Increase population
Investing in our children
Investing in supporting knowledge-based creative industries, our "natural resources" as our high
concentration of creative people / artists.
Leveraging our crafters and skilled residences
Making volunteerism a priority. What will happen when there are no more volunteers to man the food
banks and do meals on wheels etc.
More opportunities for graduates
Move the university downtown where it belongs. Students from away often complain of being isolated.
Imagine how vibrant downtown Sydney would be if there were thousands of university students and
staff downtown 365 days a year.
Our entrepreneurial ventures need to be targeting the global marketplace and export oriented.
Please move CBU out of the boonies.
Remove rose coloured glass and begin planning for a post-industrial economy without dependence on
steel and coal industries
Revitalizing downtowns, bringing CBU/NSCC downtown (e.g. specific departments)
Stopping sprawl and planning for the opposite as above. Check out the new development in
Dartmouth initiated by the CMHC. We need a plan like this to transform our built environment which in
the long term will transform our health, environment, culture, population and economy.
The clean-up of all the war ammunition dump sites located in our coastal waters in Cape Breton.
Transfer ownership of Harbourside Industrial Park/Tar Ponds lands to CBRM
We need more stable well paying government jobs here.
Why are they all in Halifax and Ottawa? Share!
9. ENVIRONMENTAL SUSTAINABILITY describes a condition in which human use of natural
resources is in balance with nature’s ability to replenish them.
Please indicate your 5 highest priorities for Environmental Sustainability Planning in CBRM by numbering
them in order from 1 (Most Important) to 5 (Least Important of your 5 choices). Please do not allow ties
(where two or more items are given the same priority) and choose five items only for each question.
Priorities for ENVIRONMENTAL SUSTAINABILITY Planning (n=102)
Protecting rare or endangered wildlife or plant species
1%3%4%2%4%
Successful reclamation of the former steel plant site (Tar Ponds)
0%8%3%7%11%
Adapting to climate change
7%1%5%3%6%
Reducing greenhouse gas emissions
4%1%5%5%6%
Improving public awareness of environmental issues
4%8%5%4%9%
Protecting our drinking water
8%11%11%8%11%
Protecting our lakes and rivers
4%6%12%10%8%
Limiting residential growth in rural areas
3%4%1%3%7%
Improving waste management (recycling, waste reduction, etc.)
6%8%7%7%4%
Protecting and restoring natural spaces
6%7%3%10%7%
Protecting the quality of our air
3%2%6%5%6%
Promoting energy conservation
3%4%8%9%8%
Developing alternative sources of energy
24%18%9%9%7%
Effective municipal planning policies
17%7%11%9%2%
Encouraging more "green" buildings (e.g., use solar power, reduce
12%14%12%11%6%
water use, energy efficiency)
0%10%20%30%40%50%60%70%
Share of 1st Place RanksShare of 2nd Place RanksShare of 3rd Place RanksShare of 4th Place RanksShare of 5th Place Ranks
Environmental Sustainability
Priority areas for with the most first place rankings were:
Developing alternative sources of energy (24% of first place rankings)
Effective municipal planning policies (17% of first place rankings)
Encouraging more "green" buildings (e.g., use solar power, reduce water use, energy efficiency)
(12% of first place rankings)
Protecting our drinking water (8% of first place rankings)
Adapting to climate change (7% of first place rankings)
Environmental Sustainability
The top five most often cited (by total rankings) priorities for are:
Developing alternative sources of energy (79% of all rankings)
Encouraging more "green" buildings (e.g., use solar power, reduce water use, energy efficiency)
(65% of all rankings)
Protecting our drinking water (58% of all rankings)
Effective municipal planning policies (54% of all rankings)
Protecting our lakes and rivers (47% of all rankings)
10 Are there priority areas for ENVIRONMENTAL SUSTAINABILITY PLANNING in CBRM that are not
listed above and are part of your top five?
Comments reflected a number of other priorities for Environmental Sustainability and included:
All of the above, only possible in the context of a plan to reverse sprawl. Neo-Conservative urban
planning.
All of these should be extremely important and rating them seems idiotic. I’m disappointed there is no
option for increasing public transport.
Cape Bretoner's should be proud and celebrate the work that has been completed with Devco and Tar
Ponds remediation. However lingering questions remain around the possibility of subsidence for those
residents living in Glace Bay, Dominion, Reserve, New Waterford, Sydney Mines and North Sydney
and of other environmental concerns concerning the SYSCO (including tar ponds) and Devco sites, as
a priority, we should ensure that our governments will accept ongoing liability in these matters and
deal with them proactively. We should also ensure that NSP or any other entity does not jeopardize
our eco systems.
Do not legalize Culling in Nova Scotia, do not allow ownership of ocean front (beach fronts) or
lakefronts of property owners to allow for safe and continued care of the environment. Do not sell off
watershed areas on Cape Breton and do not allow "dredging" of water fed areas to protect all areas. .
Effective municipal planning policies, to me, means education and preservation, protecting our lakes
and rivers, and our species at risk
Encourage a "green" industry to set up shop in CBRM, then outfit new construction with purchases
from this industry.
Encouraging active transportation by making trails and bicycle lanes. An obvious candidate would by
Sydney to Sydney River along the water.
I was born and raised in Cape Breton and after my time at Dalhousie University I moved to Calgary to
work as a project engineer with The City, I have since moved back home due to a great job
opportunity. The reason I mention this is because I see Calgary as an example of where Cape Breton
should be striving to be with regard to preserving our coastal environment. One of the most recent
projects I was involved in with The City of Calgary was called the “Storm Water Quality Retrofit
Project”. What made this possible was a completely isolated storm sewer system in The City. We
transformed outfall locations into settling lagoons and meandering ditches to remove sand, grit, and
toxins from entering the Bow River. For Cape Breton to get to this point would take years!, BUT,
working toward an isolated collection system, building wastewater treatment plants, treating storm
water etc, etc, would be in my opinion another opportunity that could be added to this list. “Investment
in Coastal Preservation”. I guess this would go hand and hand with "Protecting our lakes and rivers".
Improved bike/walking paths & public transit.
It is so hard to pick just 5!
Landfill management and control or lack of.
Making businesses more responsible with products which have environmentally friendly packaging
and less of it. The environmental and socio-economic by-products being created by our grab and go
lifestyle are our biggest reduction challenge in my opinion.
Methane capture at the waste management facility. Retro-fitting and renovating abandoned buildings
in the CBRM for re-use.
My # 5 should read promote development of alternative energy sources - not that CBRM should be
responsible for developing alternate sources.
Reduce permit time frames - Too long.
Reducing waste generation
Sewage treatment
Sewage treatment is integral to protecting our lakes, rivers and oceans.
Stop illegal dumping.
Watershed areas that are protected, should be watched more carefully
11. SOCIAL SUSTAINABILITY refers to community well-being and includes things like health,
education, housing, and social services.
Please indicate your 5 highest priorities for Social Sustainability Planning in CBRM by numbering them in
order from 1 (Most Important) to 5 (Least Important of your 5 choices). Please do not allow ties (where two
or more items are given the same priority) and choose five items only for each question.
Priorities for SOCIAL SUSTAINABILITY Planning in CBRM (n=101)
Strengthening neighborhoods
4%2%3%6%8%
Maintaining or supporting or recruiting volunteers within our aging population
0%0%4%2%2%
Creating local employment opportunities for the graduates of our schools and
30%14%8%6%8%
university
Improving intra-provincial and community partnerships
1%3%8%4%5%
Increasing public involvement in government decisions
3%2%7%3%9%
Improving public transit
2%7%11%5%5%
Investing in recreation and active living (trails, parks)
3%8%6%13%6%
Promoting healthy lifestyles/health awareness
5%8%3%8%10%
Improving accessibility for disabled persons
0%0%3%0%2%
Helping to develop options for young people to work and live in CBRM
16%22%10%9%5%
Providing support for an aging population
1%0%5%7%4%
Supporting local fire departments
0%2%0%2%5%
Feeling safe in your community
6%8%4%4%5%
Attracting and retaining former residents of Cape Breton
8%7%8%5%6%
Attracting and retaining immigrants to Cape Breton
9%7%1%9%4%
Providing affordable housing options
3%2%7%4%5%
Improving/reforming health care services
2%2%6%2%2%
Supporting the education system
7%1%2%5%7%
Improving access to education
1%6%4%6%2%
0%10%20%30%40%50%60%70%
Share of 1st Place RanksShare of 2nd Place RanksShare of 3rd Place RanksShare of 4th Place RanksShare of 5th Place Ranks
Social Sustainability
Priority areas for with the most first place rankings were:
Creating local employment opportunities for the graduates of our schools and university (30% of first
place rankings)
Helping to develop options for young people to work and live in CBRM (16% of first place rankings)
Attracting and retaining immigrants to Cape Breton (9% of first place rankings)
Attracting and retaining former residents of Cape Breton (8% of first place rankings)
Supporting the education system (7% of first place rankings)
Social Sustainability
The top five most often cited (by total rankings) priorities for are:
Creating local employment opportunities for the graduates of our schools and university (79% of all
rankings)
Helping to develop options for young people to work and live in CBRM (74% of all rankings)
Investing in recreation and active living (trails, parks) (43% of all rankings)
Promoting healthy lifestyles/health awareness (41% of all rankings)
Attracting and retaining former residents of Cape Breton (41% of all rankings)
12. Are there priority areas for SOCIAL SUSTAINABILITY PLANNING in
CBRM that are not listed above and are part of your top five?
[please specify and rate their priority]
Comments around other priorities for social sustainability planning included:
Advertise alternative health and wellness. Cut down on the number of fast food restaurants being
opened in the Sydney area.
Again take care of us and ours. The greatest buildings in the world would crumble if an aspect of their
foundation was weak. Focus on the children and allow then to see us being responsible and they will
do the same....i.e. caring for the elderly it's our responsibility.
All of the above
Amalgamation has not worked for smaller communities.
Arts and culture groups and events are integral to retaining and attracting people to live in Cape
Breton
Improving literacy levels in CBRM.
Recognize that recreation trails should not mean boardwalks, compacted gravel surfaces
Services - places to go - parks, public libraries, etc.
Supporting and improving public libraries - 1
Supporting recreation & knowledge opportunities - e.g. recreational sports for all ages, supporting
libraries.
The municipal government, in working with Habitat for Humanity, should strive to renovate and restore
areas in the CBRM that have become decrepit and abandoned.
We should establish a goal. The people of CBRM will become the most active, fittest, healthiest
people on the planet within 5 years. Residents will be encouraged to walk 30 minutes a day and
exercise 30 minutes a day. Residents will be encouraged to eat healthy and say no to simple sugars,
enriched flour, HCFS, saturated and trans fat; say no to tobacco and limit the use of alcohol. Although
it could not be policed, I would encourage that we turn the goal into law, the PR value would be
incredible and our message would be heard around the world.
13. GOVERNANCE SUSTAINABILITY refers to having the political leadership, administrative staff,
financial resources, and solid planning and decision making processes to manage and operate a
community that effectively meets service, program and infrastructure needs.
Please tell us your 5 most important priorities for Governance Sustainability in CBRM. Choose what you
think are the five most important priorities below by numbering them in order from 1 (Most Important) to 5
(Least Important of your 5 choices). Please do not allow ties (where two or more items are given the same
priority) and choose five items for each question.
Priorities for GOVERNANCE SUSTAINABILITY Planning (n=99)
Maintaining or reducing property tax rates
4%8%3%4%4%
Change CBRM Council by REDUCING the number of
14%3%7%5%1%
Councillors
Change CBRM Council by ADDING more Councillors
0%0%1%0%1%
CBRM forming stronger partnerships with other levels of
9%19%6%7%13%
government (e.g., provincial and federal)
CRBM forming stronger partnerships with existing
1%3%5%4%11%
economic development organizations
CBRM leading economic development initiatives
2%4%3%6%2%
CBRM creating an environment for economic development
30%9%12%12%4%
CBRM supporting development rather than acting as a
2%11%7%5%5%
developer
CBRM Mayor and Council taking a more positive outlook
10%5%10%6%5%
on the CBRM economy
Focusing on rural issues within CBRM
0%1%4%8%2%
Focusing on urban issues within CBRM
3%0%3%1%4%
Planning to encourage more urban density
4%5%5%3%4%
Reducing or controlling urban sprawl
2%3%5%2%7%
Encouraging cooperation among the Atlantic/Maritime
2%2%2%5%13%
Provinces
Communicating CBRM initiatives to the public
5%7%7%8%7%
More streamlined and efficient municipal planning and
3%5%3%4%7%
permitting
More responsive government
1%5%6%5%6%
More transparent local government decision-making
10%5%4%6%5%
CBRM taking stronger role in/better coordination of
2%10%7%9%1%
development efforts
0%10%20%30%40%50%60%70%80%
Share of 1st Place RanksShare of 2nd Place RanksShare of 3rd Place Ranks
Share of 4th Place RanksShare of 5th Place Ranks
Governance Sustainability
Priority areas identified for with the most first place rankings were:
CBRM creating an environment for economic development (30% of first place rankings)
Change CBRM Council by REDUCING the number of Councillors (14% of first place rankings)
CBRM Mayor and Council taking a more positive outlook on the CBRM economy (10% of first place
rankings)
More transparent local government decision-making (10% of first place rankings)
CBRM forming stronger partnerships with other levels of government (e.g., provincial and federal)
(9% of first place rankings)
Communicating CBRM initiatives to the public (5% of first place rankings)
Governance Sustainability
The top five most often cited (by total rankings) priorities for were:
CBRM creating an environment for economic development (80% of all rankings)
CBRM forming stronger partnerships with other levels of government (e.g., provincial and federal)
(64% of all rankings)
CBRM Mayor and Council taking a more positive outlook on the CBRM economy (44% of all
rankings)
Communicating CBRM initiatives to the public (42% of all rankings)
CBRM supporting development rather than acting as a developer (37% of all rankings)
More transparent local government decision-making (37% of all rankings)
14. Are there priority areas for GOVERNANCE SUSTAINABILITY PLANNING in CBRM that are not
listed above and are part of your top five?
[please specify and rate their priority]
Comments on governance sustainability are reflected below:
Abolish CBRM, we were better off before we amalgamated, go back to town councils.
Amalgamation does not benefit smaller communities.
As repeated, continue to allow for youth to stay and live in Cape Breton, soon Cape Breton will be a
retirement island if employers do not start being open minded and giving recent graduates and youth a
chance to gain experience
Become a proactive rather than a reactive government, encourage the use of municipal best
practices, take time each year to update the sustainability and (separate) business plan for CBRM.
CBRM strengthening Cape Breton by keeping money on the island
CBRM taking a leadership role within Cape Breton
I really don't know how to answer this question. I find the recent behaviour of councillors and the
mayor in recent years has made me bitter. I don't want to give them more responsibility that's for sure.
I don't want them taking more of a role in anything either, because I don't trust them to do what's right.
I don't want more councillors, I want good councillors.
Lack the knowledge to complete #14 except to point out that taxes should be raised slightly not
maintained or lowered
More councillors with much less pay. Return to the volunteer councillors - small stipend
More municipal Inspectors in Cape Breton to over-see all zoning and permits. All Cape Breton.
Number One: Rethink amalgamation. Smaller towns are being left behind because of a lack of
representation.
Redundancy in CBRM administration directors and managers.
revisiting departments and committees to reflect our population's needs and strengths (for example,
we have a high concentration of artists, yet do not have an arts and culture committee, or a tourism
committee)
Support to pensioners to remain in their own homes
The agreement of the Community and University and the Health care system of the real problem and
what’s required to fix it
We need Municipal Councillors who are educated, productive and personable. Some of the discourse
which occurs during council meetings is an embarrassment to the citizens of CBRM.
We need permanent advisory positions that are not up for election, such as analysts and economic
trackers. We often do not trust the numbers from our politicians who merely seek re-election.
Accountability to an unbiased source, in other words.
15. Any Final Comments?
A central government focusing on existing infrastructure rising out of the ashes of a former industrial
economy
A community building upon its existing strengths.
A dense, vibrant, urban centre where incentives are offered to those who choose to live in a more
sustainable way in the city.
A place where one has a quality of life not often found elsewhere, beautiful surroundings,
employment, recreational and cultural activities, family connections, and friendly communities
A positive, welcoming community with ample opportunities for employment, recreation and education.
A prosperous, economically and environmentally sound CBRM.
A reduced more efficient municipal staff. Recognition that we cannot afford certain frivolous projects, a
requirement for the application of common sense, and fair treatment for all taxpayers.
A strong community is an active community, with residents out and about, participating in community
events, volunteering. There must be areas which are designed that are attractive, multi-purpose so
that people feel welcome and will stay around - both residents and visitors to the area. Municipal
buildings should be 'flagships' and designed and in locations to draw people into the centre of the
community - they should link into the downtown areas. Why not create a community square which is a
multi-function outdoor area which could be surrounded by shops, etc. Keep the historic look - this area
has so many beautiful old homes/buildings - create heritage guidelines and stick to them. We need an
attractive community - this will draw people into the area. Encourage small business. Improve your
municipal buildings - public libraries can be multi-purpose centres like they are in other areas. Allowing
places like Centre 200 to be used for walking is important - especially for seniors. The new signs on
Charlotte St. look very nice, as are the benches. This makes a difference.
Attract more business by reducing corporate taxes and improving infrastructure. Make the CBRM a
'business friendly' zone.
Cape Breton needs to become more sustainable by keeping money on the island. It can do this by
producing its own (wind) energy and increasing local agriculture -- so Cape Bretoners can support
their neighbours.
CBRM has orchestrated the accumulation of a considerable body of research on the economic
indicators of our region. Another body of research was developed for the environmental assessment
of the Sydney Tar Ponds, both of these resources (and others) should be tapped to develop baseline
indicators for the sustainability plan, any recommendations emulating from the plan will be modelled
based on baseline to ensure that it will make an impact.
Communication at all levels is really important. The more people are engaged, the better the health of
the municipality. In science we say you can't protect something you don't understand, well in the
sense of our municipality we can't grow and move forward as a community unless we understand the
process - we need to communicate and be engaged.
Education leads to sustainability in all areas, opportunity for the educated youth to stay here will make
CBRM sustainable
Even though I do not participate publicly in this type of initiative, I am part of a large group of younger
professionals who care very much about the future of CBRM. However, we are so overworked as
employees (teachers, mostly) and parents that we have little time to contribute meaningfully to public
discourse. I regret this but I'm sure my children will be grown before I know it. I hope by then it won't
be too late to do something meaningful for them.
Families working together to care for their young and old. Stores open fewer hours and people driving
their cars less. Headlines in the paper regarding the efforts of the CBRM in harnessing wind and using
it's energy to supply power to our province. Other municipalities look to the CBRM for ideas on how to
create a sustainable community through social development strategies which encourage individuals to
thrive and fosters a sense of empowerment and a desire to succeed.
I am concerned that we still are focussed on industrial models of development. the more productive
approach would be to support high and low tech small businesses. Information technology needs
infrastructure and encouragement, the land cost and labour cost is an incentive. Also, traditional crafts
and cultural products are one of our unique features, businesses built on what makes Cape Breton
unique. The discussion of the port and transhipment is puzzling to me, we do not have the population
or the transportation links to justify this.
I am glad the word "sustainability" is being focused on in a strategic plan for this municipality. I feel we
can learn from the past, and move in a new direction (away from fossil-fuel-related industry, and
support our existing creative population and the opportunities that lie therein)
I believe we should develop a book on CBRM and all its attributes i.e. CBU, NSCC, entertainment, 8
radio stations, Ski Ben Eion, The Eagles etc. A lot of people that moved away in their early 20's don't
know what is here especially the ones who have moved away when they were single and are now
married with young families. They don't realise how much is out there for our kids. There are
numerous activities, Two Rivers Wild Life Park, The Fortress of Louisbourg the list can go on. I feel if
they had this book of all we have to offer people who are on the fence about moving home this would
make their decision to return home.
I could say much more about this if you'd like:
I feel that this survey is a deplorable waste of $200,000. As a young educated resident of the Cape
Breton Regional Municipality, I am offended at the lack of energy that has been put into this
sustainability report. The sustainability of this municipality directly effects the likelihood of my residing
in Cape Breton in the years to come. Stantec and the CBRM have chosen to treat this report as a
hurdle in the way of gas tax money. I have chosen to treat this report as an exercise in assessing this
region's future.
I really hope this initiative generates direct results and not just poorly orchestrated 'educational
campaigns' consisting of some flyers and TV ads. The CBRM has a lot of potential. With the port
coming up, the cleanup going on, and traditional Cape Breton Strengths like music, culture, the Cabot
Trail, politeness, beauty (mostly outside the CBRM) etc., there is a lot of opportunity. Property rates
are cheap, land is available, the elderly are passing on - BUT - the current CBRM has very little to
offer anyone thinking of taking the elderly place in the community. Nearly all major events are aimed
at children, middle-aged adults, or the elderly. The super-wide streets are crammed with cars
including people driving 4 blocks to the store. There are no cross-CBRM trails to speak of, there are
very few useable bicycle lanes, speeding and crosswalk violations are rarely ticketed, there are few
jobs that don't have the words 'call centre' in them, the university is out in the middle of nowhere on a
highway for silly reasons, there is a fairly high level of youth violence/crime and alcohol/drug-related
incidents (but can you blame the youth???). Basically, the CBRM can remain a dying former industrial
centre with little to offer youth, virtually zero environmental awareness, and thin, isolated pockets of
culture, where boredom reigns, flanked by one of the worst environmental messes in the world ---- or,
it can clean up its act in a big way, capitalize on its potential, and become a city where youth stay, and
people move TO instead of away from. When you see fewer huge pickup trucks with Alberta license
plates on the roads, it will be a good sign.
I think much of this survey will only serve to confuse the public and have been generally disappointed
with the ICSP Outreach process so far. We need new, educated, youthful, optimistic voices within this
planning process.
I think we need to take more pride in are history and historic properties. On the North side there are
World War 1 and 2 army barracks and the old Weston Union telegraph office (where they found out
the was over on November 10th) and both places are falling apart. The Western Union building is for
sale.
I would like to receive updates on the CBRM ISCP however I do not have an email address. I do not
have a computer. I am a senior citizen, living on a fixed income.
I would like to see a focus on promoting heritage and culture for more cultural tourism. Why can't
tourists find live traditional music in Sydney every night of the week? Also I would like to see more
emphasis on keeping and attracting young people. We need economic, social, entertainment and
recreational opportunities for 18-35 yr olds.
I’m afraid that by helping with this survey, my answers will be used to justify small mindedness. For
the most part, every single box I could’ve checked should be the driving forces behind every decision
made.
Immigration is an easy solution, and a wrong one. People leave when they don't see opportunity, yet it
requires education to see opportunity... a balanced education where children are taught to think
critically, where they are challenged, not simply made into corporate soldiers. In other words, the kids
need to feel important in a society where we are always seeking to replace people with machines. We
should encourage the arts, and a fundamental belief in things other than economy. Economy will
develop of its own from an enlightened population. Better training, higher pay, and more openings for
all teachers.
Improve animal and protection laws, and by-laws.
In the last few years the arts community seems to be thriving, or at least trying to, b/w coastal arts
initiative in New Waterford, and the stage company, there is a lot of talent around
Let us take the time to be visionary and have the insight to be able to learn from the mistakes of
others. Not to be wooed by the promise of short term economic gain, but to plan for a truly sustainable
CBRM one that does not have a revolving door of industry that robs the island of its resources and
then leaves its citizens with the clean up bill. Make industry responsible as an active participant to our
sustainability vision and as a partner to our communities. Put a dollar value to a wage that enables
people to earn a good and happy life and help everyone achieve it. People with money in their pocket
will spend it but if it's not there they can't. Most importantly we must remember that we live on an
island, the amount of room we have to move around on is limited. We must use it all wisely."
More direct support by CBRM for community driven initiatives by volunteering its expertise to achieve
their goals, be that the use of its planners, engineers, architectural services, etc.
More recreational indoor facilities for the rural areas, e.g. Whitney Pier and the smaller communities
surrounding Sydney.
My wish is to be able to stay living here in the CBRM and for positive changes in the near future!
Nothing because the only way my answers could be accepted was when I left the numbered choices
"BLANK"
People centered communities, dense enough to make it possible to live, work and shop using active
transportation and a viable active transportation network solve all the problems of sustainability at
once. They are environmentally friendly, more efficient to deliver services, attractive so people will
move here and want to live and set up businesses, and people are fitter and healthier as it
encourages physical activity and knowing-ones-neighbour.
Reduce Waste. Freeze new road construction pro tem. Have a CBRM tax rate for condominiums to
encourage their construction. Use existing staff and only employ consultants where needed. Start a
"bank" of small businesses in CBRM for use by residents wanting to provide new services to elder
population.
Taking more steps to make council work for the people. Less in fighting we are sick of not getting
along!
The CBRM is a carbon copy of hundreds of communities across North America: a car based, mall
centered culture with hideous signage advertising fast food restaurants and everything else. Why
would anybody choose to live here?
The CBRM is lacking opportunities to help the continual development of their economy by allowing
employers to be close minded about the potential which youth offer to the island. Education is a curse
here as there is a fear of job loss due to younger people being more educated than the older people.
This should not be feared but admired
There exists a lack of trust, in elected officials, educators, public workers, and the general aging
population which is most certainly leading to the mass exodus of youth from our lovely, potentially
prosperous island community. Perhaps transparency in political decisions would be a start.
This is a poorly-constructed survey which allows a very limited and stilted form of input to this process.
I have multiple priorities which were not adequately reflected, and there was no easy way to comment
on more complex thoughts.
This is a very poorly designed survey. It is hard to imagine how this information will be useful in
helping to decide where we go from here. Why wasn’t the local community and CBU involved in
designing it.
This plan needs to be a work in progress. Simple, `Hail Mary`` goals such as a lawsuit or recognition
of Cape Breton as a province or separate state will not solve our problems; we need a strategy that
attacks our problems from different fronts. It will require transparency, accountability, and
coordination. It will require strong leadership, a holistic approach requiring citizens, community
organizations, businesses, our development agencies, our governments to start rowing in the same
direction; it needs to be grassroots with everyone rowing and no one coasting. Communications will
be the grease to ensure all the gears are moving in the same direction."
This survey is unduly complicated and confusing. I believe most people wouldn't even attempt to
understand what you were asking. It could have been much clearer and concise; easier to understand.
I'm a senior, not a lawyer.
To achieve sustainability we must be careful not to repeat past practices that were unable to yield a
positive outcome. While the mining industry has a long history in Cape Breton, is it sustainable? Is
coal the best mining practice in a world that is changing over to greener energy choices & production?
Are we just creating another scenario where a mine is closing before its projected date because the
product is no longer needed or valuable enough to net a return on investment, leaving communities
once again in a dire situation?
We also need to look at what has and hasn't worked in other areas where similar challenges to that of
the CBRM have been met. Why waste resources on reinventing the wheel if it isn't required? Being
that our youth are the future of not only the CBRM but also of the culture of Cape Breton we should
explore areas in which the youth can benefit. How does our school system prepare students for life?
Are they being provided with an education and skill set that prepares them for the challenges facing
them when they exit school? Are the resources available to them to advance their education post
secondary? Not all students are able to get a university education; the reasons are varied and not
always just financial. What are we doing to help students who have learning disabilities or come from
challenging homes? Is there proper and accurate representation of the choices available other than
university? Have we communicated with industry and manufacturing sectors on what they need in a
labour force and then taken that information and produced a curriculum and then followed up to see if
it is successful? Are we teaching our youth enough about the benefits of green energy, how it will
effect climate change and the entrepreneurial benefits associated with a greener vision? Rather than
just looking towards immigration to satisfy our need for population expansion why don't we focus on
doing what needs to be done to keep the young people here? How can we increase opportunities and
wages so that people are taking a second look? Inform people about the benefits to staying in Cape
Breton and the challenges facing them when they move away. A good wage to live on here may not
be a good enough wage for Toronto or Vancouver. Give people the tools and information to make an
informed decision. Don't just rely on immigration to fill the void in population, immigration will bring its
own set of problems and needs. What skills do we need, what types of jobs will be available, are there
only vacancies in minimum wage jobs? Are we going to just create another sector of the working poor
which will in turn only create further social economic challenges? What are the challenges we will face
in bringing new and diverse cultures into the existing culture and communities. Do we have the
infrastructure in place to deal with the challenges as they arise or will the problems continue to fester
to the point where we have the crime and gang problems that now plague other areas of Canada? Do
we want to go down that road?
We are all CBRM not Albert Bridge to Westmount. Time to see CBRM as one not as 100+
communities. Too many councillors still acting as mayors. (election at large change MGA)
We need places for people to work and develop that college to its full potential.
We need to accept the demographic realities - aging and decline in the former mining communities
and consolidate and enrich services in the Sydney area. We should look for stability rather than
growth and consolidation in an attractive, diverse urban community that is age friendly (both young
and old).
Without political will from federal and provincial governments we are doomed to failure
Thinking about your vision for a sustainable community. How would you complete the following?
In my vision for CBRM I see....."
In my vision for CBRM I see an island of diverse culture coexisting and sharing their experience with
one another in small communities and city centers. I see industry working to use our resources in a
manner that provides employment beyond a few generations and does not interfere with our rural
history and culture. Communities that have retained their small town feel while promoting modern
developments for energy, transportation and departure from fossil fuels. I see entrepreneurs being
successful in bringing their goods or services to the community. A sustainable agriculture that is able
to access markets and consumers while fulfilling their needs to do so with products and services that
are CBRM based. I see a cohesive network of government and community services working together
to plan for the care of our elderly the progressive education of our youth. Also providing an accessible
infrastructure that enables people to enjoy trails and waterways for recreational enjoyment as well as
community centers and organized sports. I see tourism flourishing as Cape Breton becomes a positive
example of what can be achieved when communities, industry, private citizens and levels of
government put aside their individual agendas and grievances and work towards fair and equitable
terms that move us forward into the future to maintain our home of Cape Breton.
Towns and communities celebrating their unique identities, but working together for growth of the
overall Cape Breton economy. I see innovation and capacity being built on the island, for the island. A
place that young people are proud to live and raise their families.
CBRM branching out beyond Sydney to welcome the smaller communities’ views. Also, realizing the
potential and economic impact that they have on CBRM's future sustainability.
Cleaner town centres. More art. Parks. More concentration of population in city centre. NSCC campus
moved to downtown Sydney. A parkade in downtown.
An increase in population, labour force, average wage and investment.
My children not only wanting to be able to stay here but having the choice of staying.
A healthy, well educated population with a wide variety of work options from technology based
companies to service based and opportunities for entrepreneurs. I see a community with plenty of
recreation space like hiking trails and bike lanes. I see a community that values life-long learning and
backs this up with investment in library facilities that meet the needs of the population. I see a
community that values and supports efforts to preserve our cultural heritage.
A strong welcoming safe community that has opportunity for all citizens.
Strong, healthy, positive communities that enable citizens to not only have a good quality of life but to
feel proud and happy that they live here. PS: I am not from here, but I am so tired of hearing how
everyone everywhere else hates Cape Breton. The fact is that Cape Breton has made itself irrelevant
enough that we aren't even "on the radar" for most anymore. The insecurity and inertia that this
pessimism breeds has to be dealt with; and dealt with soon.
Qualified, sincere, cooperative elected officials. Protection for our beautiful island and its people.
Improving existing infrastructure, alternative sources of energy, protecting our environment. Regarding
industries check with Sweden (i.e., their method of providing jobs, while still protecting the
environment.
More opportunities for work, developing more green areas, sustainable transportation, caring for lakes
and rivers and the environment in general, and maintain our culture and heritage.
A community of communities where individuals, special interest groups, public servants and politicians
are all meaningfully participating in an on-going process whereby the best thinking of every person is
brought to the table, given careful consideration, and the best ideas adopted by a consensus model of
decision making. It is possible!
A community where people are healthy, active and living in a green, clean environment. CBRM has a
bright future but we need visionaries leading us toward that future.
I see a CBRM with increased population, clean, healthy environment an intelligent population.
A community with a strong urban centre that drives economic development and which is a leader in
education and environmental innovation; a community which people do not have to leave to find
employment; a community of which people can be proud and in which people want to live and work.
A leader in alternative measures, whether its energy, economic development, education, etc. We have
to think in new and innovative ways to take us to the future.
In the future, the CBRM will be seen as both a rural and an urban environment. The CBRM will gain a
greater sense of independence which will give way to more and more young professionals residing on
the island. Green businesses in collaboration with Cape Breton University will lead to a strong
engineering and technical industry. With an increase in equalization dollars transferred from the
province to the municipality, the CBRM will be able to increase investment in local innovation and
technology.
...Opportunity, innovation, autonomy, self-sustainability. Green, local, small, healthy, active. That we
have moved with the tide, not against it. Solar power means people power. The island and all of its
communities as a role model for the rest of the West. Highly educated, motivated, and engaged, as
'global but local' citizens. That we've lessened our anthropocentrism of the last two hundred years.
Multicultural, multifaceted and multigenerational. All of the beauty of our "wild, rugged shores" and our
amazing cultures and heritage - preserved, protected, and enjoyed. Lessons learned but always
learning, always moving forward. Thriving. Complex. Our children and our future, together. The home
of our hearts. My home.
An active, ecologically responsible community. I see innovative facilities based on recycling and
manufacturing of goods using recycled materials set up on the former tar ponds site. I see engineers
and architects (maybe ex-pat capers) teaming to produce a viable green business park on that site. I
see an inter-community ferry as part of a remodelled transit system where folks from the new
suburban developments in Westmount can get a ferry downtown or from North Sydney to Sydney. I
see a culture centre where non-profit arts groups (existing cooperatives and associations) that are
operating in borrowed spaces currently have a home base, and both artists and the arts-appreciating
general public have access to their knowledge by knowing there is a centre that supports them; where
musicians have a place to jam (can you believe that a rehearsal space does not exist in this city
already?) where cultural capital is seen as a worthy and important investment, and something locals
and visitors alike can enjoy. I see progressive action from our local agriculture producers to encourage
local supermarkets to buy locally -- why ship pears and apples and strawberries from California? I see
a place where people appreciate our quaint harbour, where the strong roots are nourished, and family
values upheld. I see a place where our children are given a voice, and respect. I see
garbage/recycling/compost bins on at least 80% of blocks downtown, and I see collective participation
in their creation (through shop and woodworking / industrial arts classes in the schools, and NSCC
design student resources). I see a place that includes the opportunity of choice.
A place that moved from near economic and cultural stagnancy to a place where potential can be
realized.
A diverse community that actively participates in the dynamic economy and culture of the island. A
diverse vibrant economy based on locally-owned small to medium sized enterprises connected to the
people of this place, making the most of its strengths without diminishing its beauty or environmental
soundness.
A green, environmentally friendly community where everyone who wants an education can get one,
where everyone who wants meaningful work can get it and where every person is valued, regardless
of where they were born. CBRM needs to look to the new, forget the old environmentally damaging
industries like coal mining and heavy manufacturing that only provide jobs for blue collar males. We
need to become green, information based, creative, inventive and open to diversity.
Our growing population is spurring the economy. Thank god for that very effective immigration
campaign to attract new Canadians here. All of the new buildings are heated geo-thermally with solar
panels on every roof to conserve energy. Bicycles are the preferred method of transportation
downtown, rentals are available. Public transportation is easily accessible in all communities included
in the CBRM. Replaced traffic lights with rotaries where possible, replace street lights with more
efficient units. The upfront cost should not be a deterrent to the long term gain. A way of countering
the debt for the future generations perhaps. Reducing poverty through employment and educational
opportunities will positively affect every community, in both recreational and cultural life.
Similar to the one stated by the individual in the audience at the end of the Visioning workshop.
A happy, spiritually fulfilled population who focuses on more than cold, hard cash. ...a population
which respects its youth and aged alike. ...a population who works cooperatively with their neighbours,
not engaging in cut-throat, American-style competition, but rather cooperative diversification of
interest. ...Cape Breton University, with its 21 gleaming halls, each outfitted with the most cutting edge
"green" technologies and filled with brightest young minds, as it resides on its new home -- the former
Tar Ponds site.
A mid-sized community where there are lots of people around the downtown areas; with opportunities
to participate in art and cultural events - a community that I am proud to live in. It is healthy
economically and socially, and rich in diversity.
My children choosing to stay "home" to work, play and raise their own families.
The healthiest, fittest, and smartest location on the planet.
Stronger communities who support each other in a localized economy, with small-scale intelligently
designed organic farms run on green energy.
A stable, diverse community centered on Sydney with a rich variety of educational and cultural
opportunities, and an energy efficient, environmentally sustainable City.
Job opportunities for our youth, improved transit system, more biking, walking, nature trails
Lower tax rates, more businesses = more jobs, having the young people come back to the Island,
exploring our natural resources to cut down on green house gases
More cooperation between all levels of government, and its citizens to promote a more positive image.
More high paying jobs to keep our youth in Cape Breton, transit on Sundays and more buses to
accommodate seniors
A positive, forward-thinking, vibrant community with a stable population base and opportunity for
continued growth.
A place where people come to visit and long to move here or by a vacation home. Cultural diversity
and events for all ages.
An increase in population, especially of the young and immigrants, who are able to stay and work here
at home.
Improved living
Less and Less people and more and more poverty unless government takes action to prevent it.
I see: 1. Fewer cars on the roads, 2. More encouragement of pedestrians and cyclists through actual
development, 3. Much better public transit (e.g. runs on Sundays, last bus not being at 5pm on some
routes), 4. Put CBU IN SYDNEY instead of on a highway, 5. Having a recycling and composting
program is great, but recycling is really one of the LEAST IMPORTANT environmental initiatives, 6.
Consider consulting with the Ecology Action Centre of Nova Scotia, 7. Discourage idling, 8.
Encourage getting newer vehicles or not driving often/at all, 9. Make sure the CBRM has good quality
transportation links with the mainland (e.g. retain a useful level of Acadian Lines service), 10. More
events, activities and jobs for younger people. Most young people leave the CBRM for obvious
reasons, 11. Bring more of that Celtic music into the CBRM instead of it being hundreds of kilometres
away, 12. Fine motorists who violate crosswalk rules. I have been in various cities in Europe and
North America, and Sydney is the worst city for drivers ignoring pedestrians in crosswalks I have ever
come across. 13. Give youth something to do. Vandalism, alcoholism and drug rates are high because
youth are poor, frustrated, and BORED. And the casino certainly doesn't help."
Realistic, practical, more focused, pro-active, strategic, and developmental
A vibrant community centered around a diverse and commercially successful port.
Jobs, youth, homes, children, a happy community and renewable energy
People walking to work in downtown Sydney, people eating lunch outside in parks, musicians busking
in parks, new businesses downtown, bike lanes on or parallel to all major routes & linking Sydney -
Whitney Pier, Sydney - Glace Bay - Sydney - Sydney River. Community garden plots, naturalized
lawns, Zero use of pesticides, wind turbines & solar energy taking over from Coal burning power
plants. Lots of happy active people who are proud of their community.
More solar panels, More Wind Mills spread across rural areas. Affordable housing and better, efficient,
and reliable transit system.
Less navel-gazing and more action on responsible governance, support for small communities and
development of the small and medium-sized businesses on which Cape Breton will survive.
A healthy and vibrant city (Sydney) with all sorts of amenities (theatres, shops, senior housing, public
transit, diversified population (locals + immigrants), medium and small businesses, a good hospital, a
busy harbour, etc. and the city surrounded by a rural area, with satellite communities, supplying food
and other necessary items to the city centre. In the rural areas, I see stronger communities (not just
the ribbon development of today), public transit, and jobs in the natural resource sector, technology,
artists, engineers and many other diversified employment opportunities. I see that the successful
planning of today has led to a society with out conflict. People building their homes know not to build
in environmentally sensitive areas (Floodplains, shorelines etc) or where consultation with DNR has
zoned areas for mineral and/or aggregate extraction. I see water distribution lines without leaks
(leaking infrastructure necessitates overdesign of source water infrastructure). There doesn't seem to
be enough money to maintain what we have, let alone develop new infrastructure.
I see a council that gets along with the mayor. I see a mayor that gets along with other levels of
government and Council. I see more cooperation and less in fighting. No wonder we have nothing
here, they (mayor and council) spend all their time fighting and wasting our money. We pay them very
good salaries and to my mind, get very little in return.
A community that is providing municipal services to the rate payers in an efficient and effective
manner. Being treated fairly by senior levels of government.
More Government jobs, improved healthcare and increased economic development.
A better future for our children and for future generations not having to fix past generation mistakes.
By having a complete and working plan in place the future can become clearer to all.
Better healthcare, better public transportation, more programs offered to youth, better sewage
treatment, decentralized government in Cape Breton
More closed-loop consumerism, economic development and waste management and other
environmental controls.
Stronger economic conditions, where people are encouraged to stay and work here in Cape Breton, in
turn this would add more services.
A strong community based around are greatest asset our harbour!
The community looking inward rather than relying on outside forces of consumerism for sustainability.
A place offering jobs, green space, active lifestyle, a place for tourism to grow, a place that has good
air quality and low pollution and less bog box stores and more supporting of local business.
A better community with more opportunities for our young people. That has always been a problem in
Cape Breton. Keep them here to sustain a liveable tax base for all.
A thriving community. Cape Bretoner's should not feel forced to go West. For our future, Hope would
be much better than the hopelessness people are feeling in the present.
A self contained community where young people don't leave to find work, people support their local
businesses, the arts thrive, our streets are pretty and well kept, and we're not famous for having a
environmental faux pas (i.e., the tar ponds), but for cleaning one up
Focus on what we all know works, the arts, natural resources, tourism, clean up the police force, clean
up the elected officials, improve public transit, connect our rural communities, incentives to better
living....
A safe, healthy, and stable community that works together effectively to achieve its goals. Well-paying
jobs are available to provide for young families and the community's access to services (such as
health and education) is comparable to other areas of the province. Our area is seen as a productive
and equal member of the province due to our own initiative and work effort.
An overall healthy environment which encourages positive, healthy, active people utilizing local
parks/facilities - bringing community groups/volunteers together for the greater benefit of the
community - health promotion/protection (dealing with issues that are affecting residents now such as
addiction, lack of housing, poverty, even addressing issues/raising awareness re. HepC rates, teen
pregnancy, etc) - being leaders in alternative energy initiatives (wind mills for example) & protecting
the natural resources we do have rather than exploiting them for profit “economic development” such
as strip mining!
A vibrant down town core with locally owned, unique businesses, a strengthened environmental focus,
more parks and wilderness areas accessible to the downtown, a dense, liveable downtown...the focus
for development should be on the downtown core , encouraging people to live there–more condos,
affordable apartments downtown, a housing development(s) on the waterfront, encourage further
university and college construction downtown, stop building at CBU, encourage downtown campus
Community involvement, tourists visiting during all four of our seasons, and people flocking from all
over the world to live here!
More independent businesses, a thriving arts scene and a greener Cape Breton.
My children being able to work and raise families in the best place in the world. It's the opportunity I've
been lucky to have and I wouldn't want any less for them.
The development of the "Port of Sydney" and the creation of community gardening plots throughout
the urban area of CBRM.
A senior friendly, non-parochial municipality where citizens are able to walk on ice free sidewalks and
where neighbourhood shops are found in residential areas.
Vibrant downtowns in New Waterford, Glace Bay, Dominion, and North Sydney. The University
moving to Downtown Sydney and transforming the downtown. More support for arts and culture
groups. More support for Cape Breton's small business entrepreneurs. Better public transportation.
More hiking trails. Sewer treatment. Swimming at Dominion beach. Youth invited to be involved in
their community. An emphasis on local history so young people will connect with Cape Breton
Green Building is the natural and healthy focus on our health and well being. Natural buildings, reduce
the overall impact of the built environment on human health and the natural environment.
A greener community with more natural spaces within the CBRM and a greater sense of community
from the people.
16. Is your primary place of residence (your home) in CBRM?
Is your primary place of residence (your home) in
CBRM? [This question requires an answer.]
No
10%
Yes
90%
90% of the survey respondents were from CBRM.
17. If you answered ‘Yes’ to Question 16, in which CBRM community do you live (or check nearest
community)?
In which community do you live (or check nearest community)? (n=112)
Other communities
17%
Sydney
28%
Sydney Mines
2%
Sydney Forks
2%
Lingan
2%
Leitches Creek
2%
Dominion
2%
New Waterford
3%
Louisbourg
North Sydney
3%
8%
Glace Bay
3%
Florence
3%Sydney River
6%
Mira Road
4%
Coxheath
Howie Center
Albert Bridge
5%
4%
4%
Communities represented in the survey included:
Sydney 24.1% Glace Bay 2.7%
North Sydney 7.1% Louisbourg 2.7%
Sydney River 5.4% New Waterford 2.7%
Coxheath 4.5% Dominion 1.8%
Albert Bridge 3.6% Leitches Creek 1.8%
Howie Center 3.6% Lingan 1.8%
Mira Road 3.6% Sydney Forks 1.8%
Florence 2.7% Sydney Mines 1.8%
Other communities 14.3%
18. Do you...
Do you...
70
60
50
40
30
20
10
0
... own or rent a secondary ... own a business based in ... own land or other
residence in CBRM?CBRM?investment property in
CBRM?
Of those surveyed:
28% own or rent a secondary residence in CBRM
27% own a business based in CBRM
25%own land or other investment property in CBRM
19. Are you:
Are you
45%
55%
More females (55.1%) responded to the survey than males (44.9%).
20. Into which age range do you fall?
Into which age range do you fall?
0%
1%
0%
4%
3%
3%
7%
18%
4%
11%
12%
11%
12%
8%
6%
Of those responding to the survey:
23% were under 30years of age 32% were between 50 and 70years
38% were between 30 and 50 years 7% were over the age of 70
21. Are you:
[Select all that apply]
Are you: [Select all that apply]
80%
68.5%
70%
60%
50%
40%
30%
16.3%16.3%
20%
6.5%
10%
2.2%
1.1%
0%
A part-time A full-time Employed full-Employed UnemployedRetired
studentstudenttimepart-time
Nearly 70% of survey respondents identified themselves as employed full-time and 16.3% were employed
part-time. Only 1.1% stated they were unemployed, and 16.3% were retired. Some respondents also
indicated they were a part-time (6.5%) or full-time (2.2%) students.
22. If you are employed, is your primary place of work located within CBRM?
If you are employed, is your primary
place of work located within CBRM?
14%
86%
Among those that are employed, 86% indicated they were employed in CBRM.
23. How long have you lived within CBRM ?
How long have you lived within CBRM ?
2%
8%
19%
10%
12%
49%
The majority of the survey participants have lived in CBRM for more than 20 years (48.9% have lived in
CBRM for 21 to 50 years and 19.6% have lived in CBRM for 50 years or more). Less than 10% of the
respondents are relatively new to CBRM (within the past 5 years).
24. How long have you lived within YOUR PRESENT COMMUNITY or neighbourhood?
How long have you lived within YOUR PRESENT
COMMUNITY or neighbourhood? (n=87)
5%
9%
24%
32%
16%
14%
Most of the respondents (55.2%) have lived within their present community for 11 or more years.
APPENDIX B
Sustainability Submissions, Spring 2009
The following points are reproduced from Section 1 of the CBRM staff document entitled
CBRM’s
. They are a distillation of
Integrated Community Sustainability Plan: A Discussion Paper
submissions received through newspaper advertising. Appendix A in that report, titled
“Sustainability Contributors,” listed the following people and organizations as respondents to this
solicitation:
ACAP Cape Breton
Adult Learning Association of Cape Breton County
Cape Breton Centre for Craft and Design
Cape Breton County Economic Development Authority
Cape Breton Regional Library
Charles MacDonald
Dr. Greg MacLeod
Dr. Michael Milburn
Gordon and Evelyn Sampson
Jim Peers
Judy MacIntyre
Laura Syms
Paul Carrigan
P.J. (Pat) Bates
Sydney and Area Chamber of Commerce
Sheila Van Schaick
The Wentworth Condominium Corporation
The author intended the following paragraphs to summarize “key themes that emerged from the
various presentations and suggestions”:
BUILDING ON THE REGION’S STRENGTHS
i)– There is a recognition that the region’s economic
strengths lie in certain areas including: culture and music services, the tourism industry, and the existing
information technology sector. Sustainability, therefore, is likely dependent upon highlighting these areas
of advantage. The Cape Breton Centre for Craft and Design has been very active in promoting the
benefits of a strong cultural sector in the region and they advocate the need for a strategic cultural policy
in CBRM. With respect to tourism, a regional facility such as the Fossil Centre in Sydney Mines has great
potential and should be supported. There are also opportunities to provide harbour tours and heritage
tours in communities across the CBRM given the many historic buildings and sites in the region. As well,
there is a recognition that, as the population ages, local businesses would appropriately focus their
attention on providing goods and services that are consistent with the needs of an aging population.
PROTECTING THE NATURAL ENVIRONMENT
ii)– The Atlantic Coastal Action Program (ACAP) Cape
Breton is a not-for-profit community organization which was established in 1992 for the purpose of
developing a comprehensive ecosystem management plan for the watershed in Cape Breton County.
ACAP submitted a very detailed presentation that highlighted a number of sustainability initiatives. Among
the proposals were the following: develop and implement an idling policy; implement a pesticide by-law;
ensure green procurement policies and incentives; implement and invest in the Active Transportation
Plan; protect and ensure green spaces; increase eco-sensitivity training for the staff of CBRM; identify
potential climate change impacts in the region; continue with the development of a source water
protection plan; protect critical eco-systems; protect agricultural land from development, erosion and
flooding; encourage energy conservation and efficiency; reduce waste volume; promote a healthy living
environment; and protect critical wildlife eco-systems. Beyond their concern for the natural environment,
ACAP also commented on the need to protect and enhance heritage assets in the region; encourage
economic diversity; and support the provision of affordable housing.
THE IMPORTANCE OF LOCAL FOOD PRODUCTION
iii)– There are many hopeful signs in the local
agricultural community including the presence of a number of successful large farming operations within
the CBRM, as well as the vitality of the local Farmers’ Market, and the increasing commitment of local
institutions to purchase directly from local producers. There are, however, no local food wholesalers,
there is a steady decline in important expertise within the sector, and there is no inspected abattoir in the
region. In one of the sustainability submissions it is estimated that, at a time when people across North
America are becoming increasingly concerned regarding the safety of their food, Cape Breton producers
are producing less than 20% of the total volume of food consumed in the region. In order to increase the
health and viability of local food production, several initiatives are recommended: the development of a
comprehensive plan for the local agricultural sector; an expansion of the “buy local” program across
institutions in the region; implementation of training & apprenticeship programs designed for key trades
within the sector; identification and protection of strategic farmland resource areas based upon the
relative scarcity of productive agricultural lands in the CBRM; and the importance of developing programs
to promote the role of local farm products in a healthy lifestyle.
ACHIEVING BALANCE IN THE LABOUR MARKET
iv)– Some significant emphasis, particularly within
the strategic plan submitted by the Cape Breton County Economic Development Authority, is placed on
the idea that the region’s economy would benefit significantly by supporting a greater level of involvement
of both women and youth. “Growth in Cape Breton’s labour force will not be achieved unless there is a
concerted effort undertaken to include more women in all facets of the labour force and policy making.
The new generation should strive to see an age-less, less masculine labour force with more feminine
41
ideals, an age in which the masculine and feminine elements will be more evenly balanced.”
YOUTH OUTREACH
v) – The challenge of successfully engaging young people to better understand the
opportunities available in this region and to better understand the potential significance of their
contribution to the future of their own communities is raised as a very basic issue. The extent to which
young people see a future for themselves in this region and the extent to which they are equipped to meet
future challenges will define the region’s future. Outreach programs might entail the development of a
community studies program in conjunction with the Cape Breton Victoria Regional School Board and work
placement programs for high school seniors in conjunction with the Sydney and Area Chamber of
Commerce.
EDUCATION AND LITERACY
vi) – In a submission by the Adult Learning Association of Cape Breton
County, it was noted that educational attainment levels for the working age population in the CBRM lag
well behind the standards in Nova Scotia and Canada. This is a very significant issue because higher
levels of education and higher levels of literacy lead to higher levels of employment, income, productivity,
41
CBCEDA, “Cape Breton County Strategic Plan, 2006-2016,” p. 14.
health and wellness, and community sustainability. While no one organization has the capacity to address
this very large issue independently, there are a number of organizations that need to be brought together
to develop a comprehensive approach to enhancing the literacy levels and the educational attainment of
the population in the CBRM. One of the key institutions in this respect is the Cape Breton Regional
Library. Within its sustainability submission, the Regional Library explains that its facilities need to be
assessed with a view to their ability to fulfill the needs of the community in the twenty-first century.
Libraries are fundamentally important in a society that is promoting literacy, numeracy and lifelong
learning. A society that invests in its public libraries is investing in its future because it is promoting the
importance of learning and exploring new ideas for people of all ages.
IMMIGRATION
vii)– As a region experiencing a declining population, a number of sustainability
submissions emphasized the importance of creating a more supportive environment for immigrants in
CBRM. A number of specific proposals were advanced as important components of a regional
immigration strategy including: a national marketing campaign that would highlight the attributes of the
region; creation of an immigration committee to ensure a consistent focus on the topic; support programs
for foreign students studying at Cape Breton University, including programs to foster social networks and
opportunities for working with local businesses; and the development of a dedicated fund to assist
immigrants wishing to develop businesses in the region.
INNOVATION
viii)– There is a fairly widespread recognition of the great importance of building an
innovative culture in all areas of the region’s society. Specifically, the region lacks an innovation centre
that would be capable of linking the business community to practical research related to new products
and processes. This is particularly important for local entrepreneurs and small businesses which may lack
the resources individually to conduct formal research and development activity. One submission provides
a commentary from well-known economist, Dr. Paul Romer, on the essential role of innovation in the
modern world.
STRUCTURE OF COMMUNITIES AND COMMUNITY PRIDE
ix)– In all regions of North America, there
is a need to re-examine the best way to structure communities so that they are attractive, interesting,
efficient, and sustainable from an environmental perspective. One of the reasons urban parks are so
enjoyable is that they welcome people into an environment that excludes vehicles with internal
combustion engines, and the associated noise and pollution. Some of the sustainability submissions
promote the idea of planning our communities in a way that would extend this concept so that there would
be much less reliance on cars. This would require a series of decisions and policies over an extended
period of years to build denser, mixed use urban areas where people would walk or bike or use public
transit within the urban cores. This approach is known as “new urbanism” and it is the opposite of
promoting or allowing urban sprawl to the point that everyone is basically required to drive everywhere.
One submission noted that greater urban density could require an increased reliance on condominiums
and that condominium developments offer many benefits for a region like CBRM. Urban sprawl is one of
the leading causes of a much greater incidence of population obesity with all of the associated health
risks. Urban sprawl is also reliant upon the automobile and as automobiles that run on fossil fuels become
more expensive to own and operate communities will need to adopt a new approach. Groningen in the
Netherlands is one community offered as a successful model of the benefits of new urbanism. Public
transit clearly would have to become a fundamental service if the CBRM is to promote a reduced reliance
upon automobiles within the urban core areas. Some submissions do emphasize the important role of
transit in the CBRM, not only as an investment in improving the local environment but, also, as a very
basic service for people unable to afford a personal vehicle. Beyond community planning, there is also a
recognition that it is important for citizens to have pride in their properties. The CBRM, therefore, could
also play a role in encouraging citizens through promotional campaigns to maintain their properties for
their own benefit and for the purpose of developing neighborhood and community pride.
INFRASTRUCTURE INITIATIVES
x) – Several submissions are related to infrastructure projects or
initiatives that would make a difference to the economy of the region. For example, within the submission
by the Cape Breton County Economic Development Authority, there are recommendations to: develop a
strategy to link and enhance infrastructure between Sydney Airport and the Port of Sydney; develop a
long-term plan for priority road infrastructure; build upon the downtown revitalization programs;
rehabilitate community green spaces and create new green spaces when required; and identify
telecommunications improvements necessary to maintain state-of-the-art technology. The Sydney and
Area Chamber of Commerce has also promoted the following infrastructure initiatives: dredging of Sydney
Harbour channel; the creation of an environment and energy centre at Cape Breton University; upgrading
of route 4; twinning of the 125 highway; development of a new campus in downtown Sydney for the
Marconi Campus of the Nova Scotia Community College; investments in recreation infrastructure such as
bike lanes, trails, and parks; and investments in infrastructure required to develop a high-speed
passenger rail service between Sydney and Halifax. Individual submissions also suggested the benefits of
restoring the former Western Union Office building in North Sydney as both a heritage and tourism
initiative, as well as the potential to establish a tourist bureau on Highway 105 west of the Sydney By-
Pass.
PARTNERSHIP
xi) – The innovation comments are also closely linked to several comments related to the
need for partnership in a small region. An innovation council, for example, would best be established as a
partnership of both the public and private sectors and local educational institutions. There is a need for
training apprentice managers for local companies and such a program would require a partnership
between Cape Breton University, the Marconi Campus of the Nova Scotia Community College, and the
local private sector and Chamber of Commerce. In terms of communications infrastructure, one
submission related the potential benefits of creating a municipally sponsored fee-free wireless access
zone, known as Universal Wi-Fi. This again would require a partnership of the public and private sectors
in recognition of the benefits of ubiquitous access to the internet and the World Wide Web in a
knowledge-based world. One very practical example of a successful partnership was provided by local
libraries. The Cape Breton Regional Library and the Cape Breton University Library have created a
program known as “Point of Reference” in support of local community workers and small business
operators. Regardless of which branch of the library system receives an inquiry, the request is addressed
first at the local branch and, then, at the central branch and, if needed, at the CBU library. The libraries
have cooperated to prepare a brochure which provides an overview of the services and resources
available. All of this is about the efficient provision of information in support of the development of the
local community.