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Municipal Planning Strategy
Cape Breton Regional Municipality
July 2023
TABLE OF CONTENTS
Chapter 1. The CBRM Context .......................................... 6
1.1. Introduction 7
1.2. Community profile 8
1.3. Municipal Planning Strategy Process 20
1.4. Community Engagement 20
Chapter 2. Community Vision & Guiding Principles ..... 28
2.1. Vision statement 29
2.2. Guiding Principles 30
Chapter 3. Regional Structure & Land Use .................... 31
3.1. Regional Structure 32
3.2. The CBRM Service Area Boundary 35
3.3. Intensification Areas 35
3.4. Rural Development Area 38
3.5. Lands Common to Both 38
3.6. Regional Structure Policies 39
3.7. Land Use 41
3.8. Land Use Objectives 42
3.9. Residential Land Use 55
3.10. Low Density Residential 57
3.11. General Land Use Policies 68
Chapter 4. Municipal Infrastructure and Services ....... 74
4.1. Purpose 75
4.2. Objectives 76
4.3. Water and Wastewater 77
4.4. On-site Services in Rural Areas 81
4.5. Utilities 82
4.6. Solid Waste Management 83
4.7. Energy 84
Chapter 5. Environment and Climate Change ............ 85
5.1. Purpose 86
5.2. Objectives 86
5.3. Coastal Management 87
5.4. Stormwater Management 88
5.5. Climate Change 89
Chapter 6. Housing Choice and Affordability ............... 91
6.1. Purpose 92
6.2. Objectives 92
6.3. Increasing the Housing Supply 93
6.4. Housing Affordability 96
Chapter 7. Integrated Mobility ...................................... 97
7.1. Purpose 98
7.2. Objectives 99
7.3. Public Roads 99
7.4. Private Roads 102
7.5. Data Collection 103
7.6. Complete Communities 103
7.7. Active Transportation 105
7.8. Public Transit 106
7.9. Accessibility 108
7.10. Managing Parking 110
7.11. Movement of Goods 111
7.12. Asset Management 112
Chapter 8. Economic Development ............................. 113
8.1. Purpose 114
8.2. Objectives 114
8.3. Economic Development Capacity 115
8.4. Population Growth 116
8.5. Business Parks 117
8.6. Port and Harbours 118
8.7. Rural cbrm 119
Chapter 9. Indigenous Reconciliation .......................... 120
9.1. Purpose 121
9.2. Objectives 122
9.3. Truth and Reconciliation 123
9.4. Agreements and Land Acknowledgements 124
9.5. Addition to Reserve Lands 124
Chapter 10. Arts, Culture, and Equity ........................... 126
10.1. Purpose 127
10.2. Objectives 127
10.3. General policies 128
10.4. Social Equity 128
Chapter 11. Administration and Implementation ....... 130
11.1. Purpose 131
11.2. Objectives 131
11.3. Implementation 132
11.4. Plan Amendments, Review and Monitoring 138
11.5. Evaluation 139
Chapter 1.
The CBRM Context 6
Chapter 1.
The CBRM Context
This chapter introduces the Municipal Planning Strategy and the
context for its application within the Cape Breton Regional
Municipality. It outlines the historical context of the area,
population trends, and emerging trends that influence planning
matters across the municipality today.
Chapter 1.
The CBRM Context 7
1.1. INTRODUCTION
The Cape Breton Regional Municipality (CBRM) is at an important
crossroads. After several decades of population decline and economic
downturn, the community has begun to shift its focus to redefining who
they are and how they see their community evolving. The residents of the
CBRM are passionate about their history and their communities and
understand the importance of the legacy they are building for future
generations. Turning this passion into progressive and innovative solutions
to re-establish the CBRM as one of the best places to live, work, and grow
in the Maritimes is an undertaking the community has been well prepared
for. The resilience of the CBRM has been tested for decades. The
community has proven that they believe in their home and the
opportunities it holds. By coming together to work towards a common
vision, the CBRM will reach a success beyond what history tells us is
possible.
CBRM Forward was created to support the residents of the CBRM in
achieving their dreams for the future. It includes an Economic
Development Strategy, Municipal Planning Strategy, and Land Use and
Subdivision By-laws. The suite of documents represents the CBRM’s
biggest step forward into the future since regional amalgamation. CBRM
Forward is a cohesive and targeted approach to sustainable growth and
community development for the region. It was built over two years of
meaningful collaboration between the community and Council and
encompasses the community’s biggest ideas for growth and change,
prioritizing the CBRM as a regional community while maintaining the
integrity of the communities that form the area's unique identity.
The following document contains the Municipal Planning Strategy (MPS).
The MPS is a guiding policy document created in collaboration with the
community and provides direction on the major components that support
the operation and function of a municipality. It is used to guide decisions
and set expectations for public and private investment, the management
of lands and assets, and sets the tone for advocacy with the intention of
providing an increasingly exceptional quality of life for residents. The MPS
is organized into chapters:
Chapter 1.
The CBRM Context 8
Chapter 1: The CBRM Context: This chapter sets the stage for
the MPS. It provides an overview of the CBRM’s geography,
history, population characteristics, and overall opportunities and
trends. It introduces the CBRM context at the time of the MPS
adoption and provides a baseline for measuring future
successes.
Chapter 2: Community Vision and Guiding Principles: The
Community Vision is the aspirational description of what the
community intends to achieve within the next 25 years. The
Guiding Principles direct the tone of the MPS with the intention
of achieving the Community Vision.
Chapters 3 – 11: The overall approach to planning within the
CBRM is contained in Chapters 3 to 11. This includes approaches
to land use, environment and climate change, municipal
infrastructure, housing and affordability, economic development,
social equity, integrated mobility, and Indigenous relations. Each
chapter contains a set of objectives supported by a series of clear
policies that describe an overall approach and direction and
define actionable strategies and outcomes.
Chapter 12 Implementation: The final chapter of the MPS
provides an actionable strategy for implementation. Roles are
defined and expectations are set in an effort to ensure long term
accountability and a framework for evaluation.
1.2. COMMUNITY PROFILE
The CBRM is Nova Scotia’s second largest municipality, and is home to its
second largest urban population. Approximately 75% of the population of
Cape Breton Island reside in CBRM The municipality is described as a
“community of communities,” and is comprised of eight former
municipalities located in Cape Breton County that were amalgamated in
1995: the City of Sydney, the Towns of Glace Bay, Sydney Mines, New
Waterford, North Sydney, Dominion and Louisbourg, and the Municipality
Chapter 1.
The CBRM Context 9
of the County of Cape Breton. The amalgamation addressed inefficiencies
brought on by the widely dispersed settlement patterns, which were
historically located near coal pitheads.
1.2.1. Geography
CBRM is situated on the North-Eastern edge of Nova Scotia, surrounded by
an Atlantic coastline as well as the Bras d’Or Lakes to the southwest. By
land, the municipality borders and the Mi’kmaq communities of
Membertou and Eskasoni, both of which are outside of the municipality’s
jurisdiction but are bordered by it. The Regional Centre and Downtown
Sydney fall along the Southern Shore of the banks of the Sydney River,
flowing towards the Atlantic Ocean. North Sydney and Sydney Mines are
positioned on the Northern Side of the Sydney River, accessible by two
bridges at the community of Sydney River: Keltic Drive and Peacekeeper’s
Way. North of North Sydney and Sydney Mines is the more suburban
community of Florence.
Rural development patterns line the Bras d’Or Lakes and the Atlantic Coast
Line, and follow the municipality’s highway network. Aside from the Mira
River, the interior parts of the municipality are sparsely populated. The
Southern Coast has a collection of settlements that follow local roadways,
with Louisbourg and the areas surrounding the Louisbourg National
Historic Site as the area’s largest village.
The municipality is roughly 400 kilometers from the provincial capital of
Halifax, and like the rest of Cape Breton Island, it is connected to mainland
Nova Scotia by Highway 104. Sydney is the most populated community in
the CBRM, with a collection of former municipalities that each border the
coast, connected by the province’s highway system. The former
municipalities of North Sydney, Sydney Mines, New Waterford, and Glace
Bay served the region’s coal industry, with ongoing development taking
place along the Sydney River and the Mira River.
Chapter 1.
The CBRM Context 10
1.2.2. History
EARLY SETTLEMENT
The earliest evidence of settlement in the region follows immediately after
deglaciation about 11,000 years ago. Evidence of settlement found in the
Debert Palaeo-Indian Site dates back 10,600 years, however settlement
likely occurred earlier. Cape Breton Island’s first residents were likely
Archaic maritime natives, ancestors of the Mi’kmaq. These people
inhabited the island for several thousand years and continue to inhabit the
land today. The Mi’kmaq people’s traditional lifestyle was centered around
hunting and fishing given the unfavorable agricultural conditions in the
area. The Mi’kmaq made first contact with Europeans in the early 1520s
when Portuguese fishers landed in the Bras D’or Lakes and established
fishing stations. Throughout the 1500s, relationships were established
between the Mi’kmaq and French and English settlers.
(Mi’kmaq camp in Sydney, Cape Breton Island photographed by Paul-Emile Miot in 1857)
ESKASONI AND MEMBERTOU FIRST NATIONS
Mi’kmaq were the earliest inhabitants of Unama'ki, and the lands known as
CBRM. The Indigenous communities of Membertou and Eskasoni today
remain an important piece of Cape Breton identity, both located within the
current municipal boundaries of CBRM though outside of its jurisdiction.
Located southwest of the community of North Sydney on the peninsula
bounded by St. Andrews Channel and East Bay of the Bras d’Or Lake,
Chapter 1.
The CBRM Context 11
Eskasoni has a registered population of over 4000 members. Membertou,
located between Kings Road and the community of Ashby, has a
population of 1695, including on and off-reserve community members.
Today, both Eskasoni and Membertou are growing and vibrant
communities that inform and enrich the cultural, social, and economic
fabric of the CBRM.
Throughout the 1800s, there were many Mi’kmaw communities
throughout Cape Breton. At that time, Eskasoni was a small community
that ranged between 125 to 80 people. Population growth in Eskasoni was
driven by the centralization policy by the Department of Indian Affairs in
1942 to centralize all Mi’kmaq people in Nova Scotia to two locations:
Shubenacadie in mainland Nova Scotia, and Eskasoni on Cape Breton
Island. This policy led to the extraordinary growth of Eskasoni in the
1940’s. Today, Eskasoni is the largest Aboriginal community in Atlantic
Canada with a registered population of over 4000. Eskasoni is also the
largest Mi’kmaq speaking community in the world.
The Mi’kmaq community of Membertou is the former Kings Road Reserve
(Kun’tewiktuk), once situated along the banks of the Sydney
Harbour. From 1847 to 1914, many homes were built along Kings Road
making it an urban-based Indigenous community. By the early 1900s,
Kun’tewiktuk hosted 22 homes and a school. In 1915, city council passed a
resolution requesting the federal government to immediately take the
necessary steps to remove the Mi’kmaq from their original location,
Kun’tewiktuk. In 1916, the Exchequer Court of Canada ordered the
relocation of the 125 Mi’kmaq people who lived in Kun’tewiktuk. In 1925
the Department of Indian affairs purchased 65 acres of land in Sydney.
Housing construction began in 1926 and the families began to move to
what is now known as Membertou. The last family moved in 1928.
EARLY GROWTH
A rapid population expansion occurred just after the turn of the 20th
century, when Sydney became home to one of the world’s largest steel
plants, fed by numerous coal mines in the area. During both the First and
Second World Wars, it was a main staging area for convoys. With the
consolidation of the coal mining industries and the development of the
Chapter 1.
The CBRM Context 12
steel industry during the last years of the 19th century and the first years
of the 20th, the Cape Breton County economy was transformed into an
expanding industrial center with a rapidly growing population. During this
initial period of economic prosperity in the early 20th Century, Cape
Breton County’s population increased by over 75%. In-migration, coupled
with a high birth rate fuelled population growth in the vibrant economic
centre.
THE POST-WAR CITY
CBRM’s development patterns underwent considerable changes with the
end of the 2nd World War. Before WWII, business development was
concentrated in the downtowns or central business districts of the City of
Sydney and each of the towns. In the 1950’s, a residential construction
boom occurred, with much of this new development occurring outside of
the urban landscape. A shortage of land supply in the central areas paired
with an improving road network and lower land prices made rural Cape
Breton areas more accessible than the urban hubs. These factors led to
growth in rural communities, which would now be described as suburban
communities due to the expansion of development, services, and
infrastructure.
A more efficient regional road network was constructed throughout the
early 1960’s, linking the communities of Cape Breton County. Soon after,
the Trans-Canada Highway 105 branch was extended to North Sydney,
connecting Cape Breton to the rest of Canada. Residential and business
development was greatly motivated by the new regional road network.
Siting of sales/service business development has been influenced by
proximity to the road network and major corridors. Today’s landscape
reflects the low concentration of residents, as the downtowns or central
business districts are no longer the only significant concentration areas for
sales/service business development.
Significant population and economic declines took place between 1961
and 2001. The CBRM has lost approximately 17% of its population since
the 1961 peak of 131,507. The demographic decline coincides with the
decline in the coal and steel industries. The post-war period and the later
decades of the 20th century witnessed a major decline in the number of
Chapter 1.
The CBRM Context 13
employed laborers at the Dominion Steel and Coal Corporation steel mill,
which closed its doors in 2001.
Between 1961 and 2001, both the number of young adults and children
declined most sharply, influencing other growth indicators such as birth
rates, family sizes, and senior populations. By 2001, the population of the
20-44 age group, the age-group primarily responsible for child rearing,
declined approximately 25% since 1986. The 2001 population of the 0-19
age group was only 55% of its peak 1961 population. Most alarming, the
2001 pre-school segment was less than 1/3rd of the 1961 population. The
average family size in the CBRM has dropped by a little more than 1/3rd
(4.4 persons to 2.9) between 1961 and 2001. During this same time period,
the senior population increased by over 210%. Urban CBRM has been
most adversely affected by the decline. Between 1961 and 2001 the
population of the communities that once were the 6 towns and one city
prior to amalgamation declined by almost 30%, losing over 26,000 people.
1.2.3. Population Characteristics
The Cape Breton Regional Municipality’s (CBRM) population has historically
been intertwined with the once dominant coal industry. Throughout the
later decades of the 20th century and the early 21st, the population has been
trending downward following the mine closures throughout the CBRM.
Figure 1 illustrates a peak population of 131,507 in 1961. Since then, the
CBRM has lost approximately 27% of its population.
The statistical trends of the late 20th century represent significant
demographic and workforce setbacks. The rate of decline between 1961
and 2001 demonstrated a major demographic phenomenon. The
demographic shifts had impacts that were felt across all service sectors
and resulted in declining school enrollment, shifting healthcare needs to
serve an aging population, and a stagnant tax-base with higher
infrastructure costs There has been an exodus from the CBRM, urban core,
whether the Municipality has invested heavily in infrastructure, and with a
lower-tax base serving this population is more costly on a per capita level
Chapter 1.
The CBRM Context 14
Figure 1.Historic population growth in CBRM. Source: Statistics Canada, July 1
Population Estimates, 2022
CBRM’s Municipal Planning Strategy, adopted in 2004, projected the
population to decline to 76,000 by 2021. However, this was not the case as
population decline has plateaued in recent years, and saw growth in 2017
and 2019 for the first time since the 1950’s. The projected population was
exceeded by nearly 20,000 people because out-migration has slowed.
Figure 1 shows that the estimated 2022 population of the CBRM was
94,000. This positive shift has catalyzed an effort to plan for and support
future population growth. The most recent statistical period between 2016
and 2021 saw another population decline of .05, demonstrating a
continual ebb and flow of population growth.
Table 1. Actual versus projected population by age group (2016)
Age Actual 2016 Projected 2016
0-14 12,350 10,445
15 - 64 59,620 52,568
65+ 22,310 20,888
Total 94,285 83,901
0
20,000
40,000
60,000
80,000
100,000
120,000
140,000
1941 1951 1961 1971 1981 1991 1996 2001 2006 2011 2016 2017 2018 2019 2020 2021 2022
Po
p
u
l
a
t
i
o
n
CBRM Historic Population Overview
Chapter 1.
The CBRM Context 15
The 2004 Municipal Planning Strategy projected 2016 population counts
for three age groups, based on the 2004 population trends. If nothing
changed, the population in 2016 would have been at 83,901. However,
table 1 shows that the actual population was 94, 285, nearly a 10,000-
person difference. The age group with the largest gap is the 15 to 64-year
olds.
The 2021 census showed the CBRM had a total population of 93, 965
persons with a median age of 50.4 years old and the largest demographic
being that of 15 to 64-years old at 60.8% of the population. The total
number of private dwellings was 42,315 with single-unit dwellings making
up 74% of all private dwellings.
Figure 2. Population Change in CBRM by Age Group (1961-2021)
Figure 2 highlights how the age of the population in the CBRM has evolved
over time. Locally, nationally, and globally, the share of younger
populations is trending downward. The United Nations estimates that the
global number of people over the age of 60 will double by 2050 (United
Nations, 2019). An aging population, combined with increasing life
expectancies and declining fertility rates, is leading to a higher proportion
of people in older age groups. This pronounced shift in population ages
impacts numerous aspects of the CBRM including community services,
built-form, housing, and economic activity generally.
0
5,000
10,000
15,000
20,000
25,000
30,000
35,000
40,000
45,000
50,000
1961 1971 1981 1991 1996 2001 2006 2011 2016 2021
0-4 5 to 19 20 to 44 45 to 54 55 to 64 65 +
Chapter 1.
The CBRM Context 16
Figure 3. Age composition of CBRM. Source : Statistics Canada, 2021
Census demographic projections predict the population of the CBRM will
decline by approximately 30% over the next generation to about 75,000
people. Out-migration is (and will continue to be) occurring in almost every
age group, but is most pronounced in the young adult 20-29 age group.
One of the most influential projections for the long term is the influence
the baby boom generation (those born between 1946 and 1964) on the
demographic profile. The baby boom bubble has increased the population
of each successive generation it graduates into during each census period.
The baby boomers generation are now between 58 and 76 years old. This
means more than half the baby boom generation has already entered the
seniors age group.The 2021 Statistics Canada Census showed seniors
make up about 1/3rd of the total CBRM population.
Looking at the age composition in the CBRM, Figure 3 shows that 50% of
the total population in 2016 was over the age of 50. The age group with the
highest percentage of population is the 50 to 64 age group, with 26% of
13%
5%
16%
16%24%
20%
6%
Age Composition of the CBRM Population
(2021)
0 - 14 years
15 - 19 years
20 - 34 years
35 - 49 years
50 - 64 years
65 - 70 years
80 and over
Chapter 1.
The CBRM Context 17
the total population. In contrast, the age group with the lowest percentage
of population was the 15 to 19 age group, with only 5% of the total
population.
The CBRM population pyramid (Figure 4), shows that the population is
concentrated between the age of 50 and 75. Typically, growing economies
and populations have their populations heaviest at the lowest component
of the population pyramid. This visualization is a further indication of the
demographic challenges facing CBRM. The following figure captures the
change in percentage in pyramid form during the 2016 to 2021 census
period.
Figure 4. Population by age groups, 2016 – 2021, Source : Statistics Canada, 2022
0.00%2.00%4.00%6.00%8.00%10.00%
0 to 4 years
10 to 14 years
20 to 24 years
30 to 34 years
40 to 44 years
50 to 54 years
60 to 64 years
70 to 74 years
80 to 84 years
90 to 94 years
100 years and over
Population Pyramid (2016 - 2021)
2016 2021
Chapter 1.
The CBRM Context 18
Table 2. Population Change in CBRM communities 2016-2021. Source: Statistics
Canada, 2022
Geography 2011
Population
2016
Population
2021
Population
Population
Change Rate
(%)
CBRM 97,398 94,285 93, 965 -3.5
Sydney 31,597 30,170 30,960 -2.0
Glace Bay 18,475 17,604 16,915 -8.4
New
Waterford 7,322 7,416 6,723 -8.2
North Sydney
& Sydney
Mines
12,964 12,823 12,353 -4.7
Louisbourg 946 877 825 -12.8
Between 2016 and 2021, CBRM as a whole decreased in population by -.06
percent. Sydney was the only community in the municipality to grow in
population over the census period. The largest rate of decline was in New
Waterford, followed by Louisbourg, at -5.9%. However, the rate of decline
for the municipality as a whole did slow, as the population decline between
2011 and 2016 was -3.2%.
During the COVID-19 pandemic, many of Canada’s larger urban centres
experienced out migration into smaller communities. While Nova Scotia’s
population has seen growth as a result of this out migration, CBRM has not
experienced the same rates of population growth that other communities
in Atlantic Canada. Although, the population continues to decline, positive
signs of growth are evident, including growth in Sydney, and growth fueled
by immigration and students.
1.2.4. Opportunities & Trends
Chapter 1.
The CBRM Context 19
REVERSING ECONOMIC DOWNTURN
Despite the decline of legacy industries in the CBRM, there are emerging
economic development opportunities across a number of sectors. Forced
to diversify the economy, the private and public sector has invested in new
growth opportunities in tourism, cultural, light manufacturing, information
technology, biotechnology, and green energy sectors. The region will also
continue to see a demand for workers in these sectors and also in
healthcare and education as the population demographics evolve and the
education sector grows. The CBRM is ripe with opportunities for long term,
sustainable growth.
FROM A SHRINKING POPULATION TO GROWTH
Being Nova Scotia’s second largest urban centre, the CBRM has an
opportunity to support the province in reaching its population growth
targets. CBRM’s population has been declining for multiple generations,
influenced primarily by a high out-migration rate coupled with a low birth
rate. To keep growing its workforce, Nova Scotia requires more than one
growth centre. With a focus on attracting international students and
retaining newcomers, the CBRM has the capacity to contribute significantly
to the growth of Nova Scotia’s tax base by facilitating appropriate housing
development and employment opportunities.
MUNICIPAL FINANCE & INFRASTRUCTURE
As an amalgamation of former industrial municipalities, the CBRM has a
lengthy road network, combined with substantive water, sewer, and
stormwater systems spanning Sydney, Glace Bay, New Waterford, Sydney
Mines, Louisbourg, and the communities in between. Maintaining each of
these systems represents a financial burden for the Municipality.
Population growth, combined with strategic land use planning that aligns
development with existing services, can increase the tax base while
ensuring efficient use of existing infrastructure.
HOUSING
As governments at all levels grapple with a national housing crisis, each
Chapter 1.
The CBRM Context 20
community deals with similar yet complex housing challenges. The CBRM
is no exception. The CBRM is experiencing an aging housing stock, a
limited supply of rental units, a fluctuating rental vacancy rate, and an
increasing number of residents experiencing housing poverty. By
advocating for affordable housing and the use of planning tools to
diversify the housing stock, the CBRM can be a partner in facilitating the
development of an appropriate and affordable housing stock.
1.3. MUNICIPAL PLANNING STRATEGY
PROCESS
The CBRM’s last Municipal Planning Strategy was adopted in 2004, just as
the municipality had completed its transition away from the coal and steel
industry and was in the midst of a multi-generational period of rapid and
continued population decline. The 2004 Municipal Planning Strategy was
the first to encompass the CBRM as a single jurisdiction after the 1995
amalgamation that created a new local government entity. The intention of
the 2004 Municipal Planning Strategy was to replace the 15 municipal
planning strategies and 16 Land Use By-laws left over from the former
municipalities with one unified document that applied a regional
perspective.
This Municipal Planning Strategy and associated Land Use By-law were
developed over two years, beginning in March of 2021. The process
included the creation of a comprehensive Economic Development Strategy
and Growth Management Strategy that augment the CBRM Planning
Strategy and By-laws.
1.4. COMMUNITY ENGAGEMENT
CBRM Forward was developed collaboratively with the community through
comprehensive and consistent engagement. The community engagement
process involved 4 rounds of engagement that took place between April
2021 and May 2023. Engagement was thoughtfully constructed to build
Chapter 1.
The CBRM Context 21
capacity in the community while identifying big ideas and consistent
challenges that impact day to day life in the CBRM. Creating stewards of
the Municipal Planning Strategy within the community ensured a
meaningful legacy of the planning process. Due to the COVID-19 pandemic
and public health restrictions, first round round of engagement took place
in March 2021 was completely online and focused on building education
and awareness on the planning process, including the importance and
intention for these important community regulations. The engagement
was supplemented by a robust branding strategy, which saw the creation
of the CBRM Forward project brand and associated communications
materials.
WHAT WE HEARD ROUND 1
Round 1 of engagement took place completely virtually given public health
restrictions in March and April 2021. This included:
• Council meeting and project kick-off;
• Online Town Hall;
• Virtual Focus Groups; and
• Launch of CBRM Forward engagement platform
Chapter 1.
The CBRM Context 22
o Idea wall
o Discussion Forum
o Interactive community map.
This initial round of engagement focused on building public awareness of
the planning process, including the importance of the Municipal Planning
Strategy and Land Use By-law. This round challenged residents and
stakeholders to consider opportunities for the Future of CBRM, including
seeking options for a refreshed community vision. This round of
engagement was highly successful and results in hundreds of inputs,
which ultimately were refined into an issues and opportunties report and
the community vision presented in Chapter 2.
WHAT WE HEARD ROUND 2
Round 2 of engagement took place in August 2021 and used a hybrid
format for engagement. This included :
• In-person council workshop;
• Workshop with senior staff;
• Focus groups with community interest groups;
• Pop up engagements at the Sydney Waterfront, Mayflower Mall,
Wentworth Park, Sydney Farmer’s Market, New Waterford, Florence,
North Sydney and Louisbourg;
• Three public open houses (Sydney, Glace Bay and North Sydney)
• CBRM Forward engagement platform
o Idea wall
o Discussion Forum
o Community Survey
o Interactive community map.
This round of engagement began to drill down on particular issues facing
the community and sought to gather input on a variety of issues,
including :
• Housing choice and affordability;
• Urban development;
• Population growth;
• Suburban and rural development;
• Cost and implications of development typologies;
• Integrated Mobility;
Chapter 1.
The CBRM Context 23
• Climate Resiliency;
• Community Infrastructure;
• Municipal services and operations; and
• Indigenous Reconciliation
Through this round, the project team and staff planners were able to
receive hundreds of in-person and online comments and inputs into CBRM
Forward, allowing for refined approaches toward a renewed Municipal
Planning Strategy and its associated chapters.
WHAT WE HEARD ROUND 3
The third round of engagement took place in Spring 2022 (April) and once
again took a hybrid format. This round presented the draft approach to
Future Land Use and policy directions for the Municipal Planning Strategy,
confirming what we heard we subsequent rounds. This engagement
included :
• Council workshop;
• Three public open houses (Sydney, Glace Bay, and North Sydney);
• Focus groups and meetings with senior staff, operators and
community interest groups; and
• CBRM Forward engagement platform
o Discussion Forum
o Community Survey
o Interactive community map.
Through this round we were able to confirm the following community
priorities :
• More housing choice and increased housing affordability;
• Better access to amenities and services;
• More dense and intensified commercial and residential
developments in CBRM’s urban areas;
• Increased employment opportunies;
• Commitment to grow the population through retaining
newcomers and youth; and
• Becoming a more resilient community in the face of a changing
climate.
Chapter 1.
The CBRM Context 24
WHAT WE HEARD ROUND 4
The fourth and final round of engagement took place in Spring 2023 (May)
and once again took a hybrid format. This round of engagement was
originally slated for October 2022; however, was delayed because of the
devastating impacts from Hurrican Fiona. This round presented the final
draft approach to both the Municipal Planning Strategy and zoning
through the Land Use By-law. This included :
• Council zoning workshop;
• Three public open houses (Sydney, Glace Bay, and North Sydney);
• Focus groups and meetings with senior staff, operators and
community interest groups; and
• CBRM Forward engagement platform
o Discussion Forum
o Email submissions from reviews of the draft mapping and
documents.
Through this round we were able to confirm the final general approach
to zoning and development :
• Increase density in serviced, urban areas;
• Broadly permit more development in Rural Areas by easing
development restrictions (such as expanding areas where private
roads are permitted), while limiting density in unserviced area;
• Facilitate development through de-regulation (less zones,
streamlined regulations, no miminum parking requirements); and
• Increase housing choice by permitting more as-of-right housing
developments and introducing site plan approval processes for
more dense developments.
Chapter 1.
The CBRM Context 25
SUMMARY
The final round of engagement and opportunity for
public involvement occurred during the legislative
approvals process through Council readings and
public hearing completed in summer 2023. Overall,
CBRM Forward employed a comprehensive and
robust communications and engagement strategy
that was successful in obtaining community input
and broad public support of the new approach to
responsively facilitate development within the CBRM.
This included radio ads, media releases, interviews in
local media, and paid advertising on social media.
Overall, CBRM forward engaged thousands of
residents through dozens of opportunities for in-
person and online engagement. The CBRM Forward
engagement platform experienced over 30,000
website views from 8,000 unique visitors. CBRM is
pleased with the outcome of this engagement
strategy and is confident that the approach
presenting in this Municipal Planning Strategy was
informed by fulsome input from residents, business
owners, and other stakeholders, creating a
generational document that meets the needs of CBRM for years to come.
1.4.1. Legislative Basis & Statements of Provincial
Interest
The Municipal Planning Strategy and Land Use By-law were developed in
line with the Municipal Government Act (the Act). Part VIII and IX of the Act
prescribe the required content of municipal planning strategies as well as
land use and subdivision by-laws. The Act also prescribes five Statements
of Provincial Interest that are intended to ensure the priorities of all Nova
Scotians are considered across jurisdictions and are expected to be
Chapter 1.
The CBRM Context 26
considered in all planning documents adopted and administered
throughout Nova Scotia. Each Statement of Provincial Interest and how
and where the Municipal Planning Strategy addresses each statement is
summarized below.
STATEMENT 1: DRINKING WATER
Residents of CBRM rely on ground and surface water resources for their
drinking water, either through municipal water services or private wells.
CBRM is committed to protecting drinking water sources within this
Municipal Planning Strategy. The MPS outlines policies and enables
regulations, such as restrictive zoning through the Land Use By-law that
limits and manages land uses to protect drinking water quality.
MPS Policies: RS-2, RS-3, LU-2, LU-6, LU-81, LU-82, LU-85, LU-87, MI-1,
MI-2, and MI-6
STATEMENT 2: FLOOD RISK AREAS
Due its geography and the increase in significant weather events, CBRM
encompasses many areas that are susceptible to flood risk. CBRM is
committed to complying with this Statement of Provincial Interest by
identifying Flood Risk Areas and managing development which could
contribute to upstream of downstream flooding, or otherwise cause
increased harm to human safety and property.
MPS Policies: LU-83, LU-84, E-3, E-4, E-5, E-6, E-7
STATEMENT 3: AGRICULTURAL LANDS
CBRM is committed to promoting food security and creating a more
sustainable agriculture and food industry for residents of the municipality
and the province as a whole. CBRM aims to protect agricultural lands from
non-agricultural development, to promote the availability of locally grown
food, and to support the economic prosperity of those who grow it. CBRM
is committed to giving priority to agricultural land and reducing land
conflicts between agricultural and non-agricultural uses.
MPS Policies: LU-64, LU-66, LU-70, LU-72, LU-72a, LU-76, ED-15
Chapter 1.
The CBRM Context 27
STATEMENT 4: INFRASTRUCTURE
To ensure the efficient use of existing water supplies and wastewater
disposal infrastructure, CBRM intends to encourage development where
this infrastructure already exists, or can be extended to with minimal
service costs. By discouraging development in areas far away from existing
infrastructure, CBRM aims to avoid the environmental and health risks
associated with inadequate infastructure, while also reducing the cost of
building new infrastructure, which would otherwise be taken on by the
municipality and taxpayers.
MPS Policies: RS-1, RS-2, LU-2, MI-1 – MI-12.
STATEMENT 5: HOUSING
CBRM recognizes that adequate shelter is a right for all Nova Scotians, and
is therefore committed to encouraging the development of a wide range of
housing types to meet the needs of the current and future CBRM
population. Through planning documents, policy, and development
decisions, CBRM aims to maintain and expand the municipality’s housing
stock in a way which promotes higher densities, affordable housing, and
housing which is appropriate for a population of all ages and abilities. In
doing this, CBRM will be prepared for future growth by ensuring that
future residents have adequate places to live.
MPS Policies: H-1 – H-16, LU-12, LU-13, LU-19, LU-22, LU-26, LU-32, LU-
35, LU-40 – 52, LU-75, LU-104- LU 105.
Chapter 2.
Community Vision & Guiding Principles 28
Chapter 2.
Community Vision & Guiding
Principles
The vision statement is an aspirational statement that describes what
CBRM will be in 10 years. This vision is what the CBRM community wants
for itself. To enable this vision, a list of guiding principles help frame the
policies and guide municipal plans, policies, operations, and Council
decision-making over the life of the MPS.
Chapter 2.
Community Vision & Guiding Principles 29
2.1. VISION STATEMENT
The Vision Statement captures an aspirational vision for the future of the
CBRM. It is built from those big ideas the community has for itself and sets
an ambitious target for the CBRM to become the best version of itself. The
residents of the CBRM are passionately focused on their communities and
their vision for the future speaks to capturing their potential while
upholding the history and culture that has shaped who they are.
Located in beautiful U'nama'kik, CBRM is reminded and grateful of our
Indigenous peoples’ care of these lands for thousands of years. Today, CBRM is
a community united with a shared vision – to forge a unique and progressive
path into the future. With an approach to growth that prioritizes quality of life
and community well-being, CBRM will continue to be shaped by its passionate
people and partners, as an exciting and dynamic place for those lucky to call
this place home. Through ongoing and meaningful collaboration between
residents and Council, the CBRM, in proud partnership with Eskasoni and
Membertou, will be a place where residents feel supported, newcomers feel
welcomed, and where a sense of pride in the community is evident. Businesses
flourish under the support of a welcoming community creating investor
confidence and an environment that fosters innovation and creativity.
Chapter 2.
Community Vision & Guiding Principles 30
2.2. GUIDING PRINCIPLES
1. Prioritize the effective and efficient use of municipal infrastructure
and resources.
2. Mitigate the risks of natural hazards and climate change to ensure
the CBRM is a resilient and beautiful coastal community.
3. Maintain economic growth throughout the whole region through
community planning and strong partners.
4. Recognize the Peace and Friendship Treaties and enable strong
partnerships with Eskasoni and Membertou through the lens of
reconciliation.
5. Protect and strengthen the culturally distinctive places and strong
identities of all communities throughout CBRM.
6. Provide broad housing choice by allowing housing diversity and
prioritizing affordability throughout the region.
7. Foster an inclusive and welcoming environment for all residents,
newcomers, business owners, and visitors to CBRM.
8. Provide for the equitable and efficient movement of people and
goods through an integrated mobility network.
9. Provide recreational opportunities and community uses through
accessible and equitable facilities, amenities and programming.
10. Be an accountable and transparent civil service that values
democratic principles through accessible and equitable participation
from the community.
Chapter 3.
Regional Structure & Land Use 31
Chapter 3.
Regional Structure & Land Use
The Regional Structure and Land Use provides the basis for how
land will be used, managed and developed throughout the
Municipal Planning Area over the life of the MPS. These policies
enable zoning regulations in the Land Use By-law.
Chapter 3.
Regional Structure & Land Use 32
3.1. REGIONAL STRUCTURE
Regional Structure refers to the way the physical geography of the
CBRM is organized. Informed by the historical land use pattern as well
as the extent of municipal infrastructure and services, the Regional
Structure sets the tone for increasingly efficient land use throughout
the CBRM. The Regional Structure Map forms Schedule A of the MPS
and provides a snapshot of areas of intensification, employment areas,
and rural areas. The Regional Structure Map is intended to be used as
a tool to visualize the Municipality as being organized into areas of
change or stability and to inform the General Future Land Use
Designations that form the overall approach to land use found in
section 3.7.
The CBRM Regional Structure uses a Service Area Boundary to define
the extent of the areas positioned for the greatest intensities of
growth. The Service Area Boundary includes the areas of the CBRM
that have municipally owned and maintained services including water
and sanitary and storm sewer in good working order with a reasonable
capacity to support growth. Within the Service Area Boundary there
are several areas targeted for a range of land use intensification:
Regional Centre, Local Centre, Mixed Use Centre, Urban Intensification,
and Suburban Intensification. The Rural Development Area is found
outside the Service Area Boundary and is generally intended to
continue the established rural development pattern that defines the
picturesque identity of the CBRM. Parks, natural areas, important
transportation corridors, lands reserved for future development, and
federal lands may be found both inside and outside the Service Area
Boundary.
Effective implementation of the Regional Structure will prioritize the
efficient use of municipally owned infrastructure. The intention of a
framework for intensification is to limit infrastructure sprawl beyond
the limits of what the CBRM can administer and maintain effectively at
the time of the MPS adoption. As the Service Area Boundary intensifies
and reaches capacity, the extent of the infrastructure boundary will be
regularly re-evaluated to ensure the effective and efficient
accommodation of economic and population growth.
Chapter 3.
Regional Structure & Land Use 33
3.1.1. Growth Targets
The land use framework, outlined in this chapter, will serve as a statutory
guide for development. The Municipal Planning Strategy provides clarity
and predictability for where residential, employment and mixed-uses will
grow and ensures the appropriate supply of land to grow the
municipality’s population and economy. To retain the traditional function
of the urban centres of CBRM and promote fiscal sustainability and reduce
the infrastructure deficit, this plan anticipates that the majority of growth
will take place within the Service Area Boundary.
Over the planning period, 75% of development will be directed to within
the Service Area Boundary, with a large proportion of this growth directed
to areas within the Regional Centre through targeted measures, such as
Intensification Areas, those areas where more dense, mixed development
can be accommodated. Growth and reinvestment is also targeted to the
Local Centres and Mixed Use Centres. The remaining 25% of growth is
anticipated to occur in the rural areas. The majority of growth in these
areas will be designated to areas with existing infrastructure, such as road
frontage, in order to limit municipal expenditures and ensure that rural
and resource areas remain protected from sprawl and continue to be
important, productive lands.
By directing growth and investment to areas that
have services CBRM is making strides toward
becoming a financially, environmentally, and
socially sustainable community, positioned for
economic growth.
Chapter 3.
Regional Structure & Land Use 34
3.1.2. Regional Structure Objectives
Encourage the efficient use of land and municipal
infrastructure and services.
Identify Service Boundaries as areas to direct residential and
sales and service development as a way to increase the
effective use of municipal infrastructure and services.
Identify areas of urban and suburban intensification where
infrastructure and services are appropriately matched with
the prevailing development pattern and primed for
increased investment.
Position the CBRM’s rural areas to preserve traditional rural
character.
Identify areas where increases in residential density are
welcomed and feasible to encourage compact urban
development.
Identify key corridors that provide connections into the
CBRM’s priority areas.
Figure 5. Regional Structure Classification
Chapter 3.
Regional Structure & Land Use 35
3.2. THE CBRM SERVICE AREA
BOUNDARY
The Service Area Boundary generally encompasses areas within the CBRM
with existing municipal water and sanitary and storm sewer infrastructure.
The majority of the CBRM’s residents and businesses live and operate
within the Service Area Boundary. These areas are prioritized as the
primary development area and targeted for the majority of the
Municipality’s future growth. The Service Area Boundary contains four
Regional Structure categories; Intensification Areas, Employment Areas,
and Primary Corridors. Each of these categories contains a series of sub-
categories that describe the intention for land use within a certain
geography.
It is assumed the infrastructure within the Service Area Boundary is in
reasonable condition and is given a high priority for maintenance. In
general, it includes serviced areas from Sydney River to Sydney, from
Sydney to Glace Bay including Grand Lake Road / Highway 4, Glace Bay,
North Sydney, and Sydney Mines. The Service Area Boundary will contain
the intensification areas, and other lands like employment areas, stable
residential areas, and primary corridors. The Service Area Boundary will be
used extensively over the lifespan of the plan to direct growth and
development, services, and programming.
3.3. INTENSIFICATION AREAS
Intensification Areas are areas within the Service Boundary targeted for
the most growth over the lifespan of the MPS. Although development will
continue to occur throughout the CBRM, the Intensification Areas allow for
the efficient and effective use of existing municipal infrastructure while
protecting the traditional character of rural areas. Ensuring the most
intense development pressure aligns with areas primed for increased
density allows the CBRM to grow sustainably while maintaining the
Chapter 3.
Regional Structure & Land Use 36
community’s most treasured natural spaces and places. There are five
intensification area categories within the CBRM; Regional Centre, Local
Centre, Mixed Use Centre, Urban Intensification Area, and Suburban
Intensification Area.
REGIONAL CENTRE
The Regional Centre is the hub of the CBRM as it provides the greatest
variety of services to residents and visitors of the region. The Regional
Centre is intended to contain the most diverse and dense concentration of
land uses in the Municipality. A focus on the intensification of residential
and sales and service uses is expected in this area through the provision of
progressive land use and infill development policy and regulation that
encourages increased density and efficient use of land.
The Regional Centre includes Downtown Sydney, the North End of Sydney,
Ashby, a portion of the South End of Sydney, Whitney Pier, and Grand Lake
Road. The Mayflower Mall and surrounding area is also considered part of
the Regional Centre as it is the central area of sales and service activity in
the CBRM.
LOCAL CENTRE
A Local Centre is an area of concentrated services that serves the needs of
the surrounding community. These areas provide a similar range of land
uses as the Regional Centre but at a scale that is less dense and within a
smaller geographic footprint. Outside of the Regional Centre, the Local
Centres have the greatest capacity to handle growth due to existing high
quality services, availability of land, and community amenities. The Local
Centres include North Sydney and Glace Bay; communities within the
CBRM that have a defined and intact downtown area that centralizes
services in a historic development pattern. Cape Breton University is also
considered a Local Centre in an effort to incentivize development around
an important regional asset.
MIXED USE CENTRE
A Mixed Use Centre is an area of concentrated services and activities that
Chapter 3.
Regional Structure & Land Use 37
serves the needs of the immediate neighbourhood. These service nodes
are the traditional core of the community and present opportunities for
reurbanization through the introduction of a greater mixture of land uses
and densities. Mixed Use Centres include the communities of Sydney River,
Reserve Mines, Sydney Mines, New Waterford, Dominion, and Louisbourg.
MEDIUM TO HIGH DENSITY RESIDENTIAL
The Medium and High Density Residential designation is applied to those
urban neighbourhoods within the Service Boundary that fall outside the
Regional or Local Centre but have a development pattern or servicing
capacity that supports increased density of land use. These areas may
include more compact development patterns with a mixture of land uses
that support greater densities.
LOW DENSITY RESIDENTIAL
Low Density Residential is applied to residential neighbourhoods that are
growing or have the potential to grow over the lifespan of the MPS. These
areas are typically of a lower density development pattern and uniformly
residential. Suburban areas within the CBRM are dominated by the single
unit dwelling. It is anticipated that Suburban Intensification Areas will
maintain an overall lower density than urban areas but will evolve to
include an increased variety of housing types. Suburban intensification
areas are designated at Sydney River, Keltic Drive, Coxheath and
Westmount.
3.3.1. Employment Areas
An Employment Area houses a concentration of economic activity
including a range of sales, services, and industrial land uses. Employment
Areas include the Regional Centre and Local Centres and areas outside of
the centres that include a concentration of employment such as business
or industrial parks. Employment Areas outside of the Regional Centre and
Local Centres do not include residential uses as these are targeted for
more intensive land use that may conflict with a residential development
Chapter 3.
Regional Structure & Land Use 38
pattern.
3.4. RURAL DEVELOPMENT AREA
The Rural Development Area encompasses the mostly unserviced lands
that fall outside the Intensification and Employment Areas. The areas are
predominantly undeveloped but also include instances of residential,
resource, recreation, and agricultural uses. These areas are intended to
support limited growth and are, instead, focused on preserving the rural
character that forms the foundation of the Cape Breton identity.
3.5. LANDS COMMON TO THE SERVICE
AREA BOUNDARY AND RURAL
DEVELOPMENT AREAS
There are lands within the CBRM that may fall within the Service Area
Boundary or the Rural Development Area. Parks, Natural Areas, and
Environmentally Significant Lands are found throughout the CBRM.
Primary Corridors move residents and visitors through and between
serviced and unserviced lands. Future Development Lands are those held
in anticipation of future development pressure. Federal Lands are those
owned, managed, or controlled by the Federal Government.
3.5.1. Parks, Natural Areas, & Environmentally
Significant Lands
Parks, Natural Areas, and Environmentally Significant Lands include
coastlines, urban and rural forests, natural areas that have not been
subjected to disturbance, waterways, wetlands, and areas used for passive
recreation. These areas such as the Gabarus Wilderness Area are not
recommended for development.
Chapter 3.
Regional Structure & Land Use 39
3.5.2. Primary Corridors
Primary Corridors are the links between the Regional Centre, Local and
Mixed Use Centres, and Urban Intensification Areas. They define the
experience of drivers, pedestrians, cyclists, and public transit users as they
move through the core places of the CBRM. Primary Corridors are located
along major thoroughfares throughout the Municipality and accommodate
a range of land uses and densities. The Primary Corridors include Sydney
Glace Bay Highway from Sydney to Glace Bay; Kings Road from Downtown
Sydney to Sydney River; Highway 28 from Glace Bay to Dominion; and
Keltic Drive from Kings Road to the Sydport Access Road.
3.6. REGIONAL STRUCTURE POLICIES
The following policies support the implementation of the Regional
Structure Map in Schedule A and provide direction on integrating the
framework into the CBRM’s decision making process.
RS-1 Council shall adopt the Regional Structure Map in Schedule A.
RS-2 Council shall establish the Service Area Boundary on the
Generalized Future Land Use Map (Schedule B). The Service Area
Boundary are the lands currently serviced with municipal water,
sanitary sewer, and storm sewer, or any combination thereof,
with the capacity to accommodate additional development over
the planning period.
RS-3 Council shall prohibit development serviced by municipal water,
sanitary sewer, and storm sewer, or any combination thereof,
outside of the Service Area Boundary. An amendment to extend
the Service Area Boundary in the Regional Structure Map
(Schedule A) and the Generalized Future Land Use Map
(Schedule B) must be undertaken prior to the approval of any
serviced development outside of the Service Area Boundary to
Chapter 3.
Regional Structure & Land Use 40
ensure such expanded areas are desirable for the
community. Such amendment must be done in compliance with
Policy LU-7.
RS-4 Council shall ensure the Regional Structure Map (Schedule A) is
consistent with the Generalized Future Land Use Map (Schedule
B).
RS-5 Council shall consider changes to the Regional Structure Map
(Schedule A) only when changes are undertaken to the
Generalized Future Land Use Map (Schedule B).
RS-6 Should there be a conflict between the Regional Structure Map
(Schedule A) and the Generalized Future Land Use Map
(Schedule B), Council shall ensure the Generalized Future Land
Use Map (Schedule B) prevails.
RS-7 Council shall target the Intensification Areas, including the
Regional Centre, Local Centres, Mixed Use Centres, and Low,
Medium and High Reisndetial for increased investment including
an improved level of municipal infrastructure and services and
guide private investment to be in conformity with a higher
quality service standard.
RS-8 Council shall recognize the Employment Areas as critical
economic drivers in the CBRM and encourage development that
is supportive of employment uses and discourage development
that may cause unnecessary conflict or detract from
Employment Areas.
RS-9 Council shall recognise the Rural Development Area as an
important connection to the CBRM history and identity as an
area of substantial rural character synonymous with the historic
development pattern recognised as uniquely Cape Breton.
Council shall encourage development in the Rural Development
Area to be respectful of the historic, low density development
Chapter 3.
Regional Structure & Land Use 41
pattern by limiting the expansion of intensification into these
areas.
3.7. LAND USE
The section that follows presents the framework for land use within the
CBRM. The approach to land use is clear, predictable, and focused on the
efficient and sustainable use of lands within the CBRM. It is a growth
focused approach that incentivizes and prioritizes infill development
around areas of concentrated services with the intention of building
stronger, more resilient neighbourhoods. The approach to growth
balances the needs of existing residents while considering the needs of the
next generations that will call the CBRM home. As an ageing municipality
seeking to attract newcomers, the CBRM will face new demands and
challenges not previously seen. Creating a land use framework that is
nimble and adaptive to the changing needs of the community is critical to
the CBRM’s longevity.
Chapter 3.
Regional Structure & Land Use 42
3.8. LAND USE OBJECTIVES
These objectives provide guidance for what types of development should
be permitted and where. By working toward these objectives, CBRM will
use development decisions and community design to prioritize quality of
life and community well-being, and to ensure that local businesses flourish
to promote creativity and innovation. CBRM’s Land Use Objectives include:
Provide guidance for development decisions that are framed
by the community’s priorities, are in the best interest of the
community, and position the CBRM for long-term
sustainability.
Encourage new development and investment to occur within
the Service Area Boundary when appropriate.
Chapter 3.
Regional Structure & Land Use 43
Limit development in the Rural Development Area to ensure
the preservation of the traditional rural character that
shapes the identity of the community.
Incentivize new and innovative forms of increasingly dense
development in the Regional Centre and Local Centres.
Ensure the efficient use of existing municipal infrastructure
and services and limit the extension of these services
beyond the Service Area Boundary.
Manage land in a way that considers an improved quality of
life for all residents.
Encourage reinvestment in Downtown Sydney, positioning
the area as the Region’s cultural, economic, and
entertainment hub.
Direct increased investment to Local and Mixed-Use Centres
to maximize the use of existing infrastructure while
supporting the redevelopment of these core areas.
Support Membertou First Nation and Eskasoni First Nation
in their land use management and development projects.
Ensure a broad variety of land use designations are available
to foster a positive and welcoming approach to development
that meets the needs of the community.
Work with the Province to designate areas for resource
extraction, forestry, agriculture and/or intensive industrial
uses that resolve the impact on the rural character of the
CBRM, and improves the positive impact of the rural
character where possible or appropriate.
Protect CBRM’s natural areas and environmentally
Chapter 3.
Regional Structure & Land Use 44
significant and sensitive areas by limiting or prohibiting
development in these areas.
Foster complete communities in the CBRM’s Regional, Local,
and Mixed-Use Centres to provide residents with increased
opportunities to live, work, and recreate in their
neighbourhoods.
3.8.1. Land Use Designations & Regional Structure
The Regional Structure is implemented through Land Use Designations,
which ensure that different types of development occurs in designated
areas, and is steered away from the treasured or environmentally sensitive
areas that the municipality wants to protect. Land Use Designations
further refine the information presented in the Regional Structure and
provide a description of the CBRM’s lands and how they are currently
utilized and how they intended to be utilized throughout the planning
period. Land Use Designations are presented on the Generalized Future
Land Use Map in Schedule B. This map is a comprehensive visualization of
the CBRM’s land use pattern and provides a picture of where residential,
sales, service, industrial, institutional, and other key land uses are located
and where they are intended to be located in the future.
To ensure consistency between the framework proposed by the Regional
Structure, the Service Area Boundary will be applied as an overlay on the
Generalized Future Land Use Map in Schedule B. The Regional Structure
framework and how it dictates the structure of the land use designations is
described in the diagram below.
Chapter 3.
Regional Structure & Land Use 45
Chapter 3.
Regional Structure & Land Use 46
3.8.2. Regional Structure and Land Use Policies
LU-1 Council shall establish the Generalized Future Land Use Map in
Schedule B.
LU-2 Council shall provide the Service Area Boundary, described as
the areas within the CBRM that are services by municipal water,
sanitary sewer, and storm sewer, as an overlay on the
Generalized Future Land Use Map in Schedule B.
LU-3 Council shall utilize the Service Area Boundary as a growth
boundary to manage development outside the Service Area
Boundary with a goal of maintaining the rural character that
forms the traditional development pattern of rural Cape Breton.
LU-4 Council shall be prohibited apartment building development in
all areas of the CBRM not serviced with a Municipal piped
sanitary sewer main, except to facilitate the re-use of
abandoned, community, educational, or municipal service
buildings.
LU-5 Unless pursuant to policies within the MPS, Council shall
prohibit zone amendments for any sales and service
development proposal in Residential Land Designations.
LU-6 Council shall strongly discourage municipal infrastructure
investment and new municipal water, sanitary and storm sewer
infrastructure outside of the Service Area Boundary.
LU-7 Council shall strongly discourage extending or changing the
boundaries of the Service Area Boundary except through a
comprehensive review of the following criteria:
• Municipal Infrastructure capacity; and
• Reasonable availability of suitable lands within the Service
Area Boundary; Capital cost of maintaining infrastructure
Chapter 3.
Regional Structure & Land Use 47
proposed as part of an application outside of the Service Area
Boundary estimated yearly over a 25-year period.
3.8.3. Commercial Land Use Designations
The CBRM offers a variety of sales and service areas that provide a diverse
offering of business and personal services. These areas range from large
format retail stores on busy urban corridors to retail shops and services
clustered around a rural road intersection. These areas drive the economic
development of the CBRM while also providing critical services to residents
and the travelling public. The approach to sales and service development
in the CBRM recognizes that sales and service development occurs in a
variety of areas at different intensities and attempts to define these areas
in line with how the community currently uses them while accounting for
their potential to accommodate increased development. By identifying and
creating policy to further promote sales and service development
opportunities in these areas, the CBRM aims to enhance the experiences
of residents and visitors who live, work, and play in these areas, while also
continuing to promote sustainable and innovative economic development
in the municipality.
DOWNTOWN REGIONAL CENTRE
Downtown Regional Centre (Sydney) is the CBRM’s most intensive
development area. Its mix of sales, service, residential, and mixed use is
the CBRM’s most dense and complex. Downtown Sydney is the Region’s
urban hub for economic development, entertainment, and culture. It has
the largest concentration of office uses, public sector buildings, retail
services, financial institutions, restaurants, public buildings, cruise ship
facilities, and event spaces in the Region. The Downtown Regional Centre
Land Use Designation positions the area to continue the concentration of
mixed uses and captures opportunities to intensify land uses with
allowances for greater residential and non-residential densities.
Chapter 3.
Regional Structure & Land Use 48
3.8.4. Downtown Regional Centre Policies
LU-8 Council shall identify the Downtown Regional Centre Land Use
Designation on the Generalized Future Land Use Map in
Schedule B.
LU-9 Council shall recognize the Downtown Regional Centre as the
CBRM’s primary business, tourism, institutional, and service
centre through directing a mix of land uses that support a
dynamic and vibrant core.
LU-10 Council shall prioritize reinvestment and revitalization efforts to
support the continued and sustainable growth of the Downtown
Regional Centre with the aim of developing the area as the
Regional Centre of the CBRM.
LU-11 Council shall explore introducing development initiatives to
incentivize development in the Downtown Regional Centre.
LU-12 Council shall permit high density residential developments,
including apartment buildings, without the need for a zone
amendment, under provisions within the Land Use By-law.
LU-13 Council shall permit mixed-use developments with the intention
of increasing pedestrian and business activity on the streets of
Downtown Sydney.
LU-14 Council shall permit the redevelopment of lands currently used
as parking lots into residential uses, sales and service uses, or
mixed-use developments, provided that these developments are
consistent with the provisions of the Land Use By-law.
LU-15 Council shall collaborate with the Sydney Downtown
Development Association to encourage the development of
programming, events, placemaking, and beautification activities
that reflect Downtown Sydney as the Region’s centre for urban
Chapter 3.
Regional Structure & Land Use 49
activity.
LU-16 Council shall, through the Land Use By-law, prohibit the
development of automobile oriented land uses such as drive-
thru restaurants on Charlotte Street in Downtown Sydney.
LU-17 Council may collaborate with Sydney Downtown Development
Association, the Cape Breton Partnership, Destination Cape
Breton, and the Cape Breton Local Immigration Partnership to
advertise Downtown Sydney as the cultural and entertainment
hub of the Region and an ideal place to live, work, and play.
LU-18 Council shall work with the Cape Breton Regional Chamber of
Commerce to develop marketing collateral for business
investment in Downtown Sydney describing the variety of
opportunities available to invest in the Region’s core.
LU-19 Council may explore opportunities to target municipally owned
lands in the Downtown Sydney Land Use Designation for higher
density, affordable and mixed market housing development.
REGIONAL COMMERCIAL CENTRE LAND USE DESIGNATION
The Regional Commercial Centre encompasses the area around Mayflower
Mall and the portion of Grand Lake Road that connects Mayflower Mall to
Downtown Sydney. This area is anchored by big-box retail tenants as well
as strip malls and other large format retail and service uses. This area is
the most intensive retail and service area in the region and serves all
residents of the CBRM as well as the broader population base of Cape
Breton Island. The area is envisioned to continue its primarily sales and
service development pattern throughout the planning period.
Opportunities to integrate high density residential uses will be considered
and prioritized to ensure increased housing options near areas where
employment is concentrated.
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Regional Structure & Land Use 50
3.8.5. Regional Commercial Centre Land Use
Policies
LU-20 Council shall identify the Regional Commercial Centre Land Use
Designation on the Generalized Future Land Use Map in
Schedule B.
LU-21 Council shall recognize the Regional Commercial Centre as the
major retail area within the Region that supports a range of
sales and services to serve residents of the CBRM and Cape
Breton Island and encourage a variety of land uses in the
Regional Commercial Centre through appropriate provisions in
the Land Use By-law.
LU-22 Council shall encourage high density residential developments
that would place employees within walking distance of their
employers and enhance the efficient use of lands on the
periphery of larger format retail uses.
LU-23 Council shall encourage large format retail developments that
serve a regional population to be located within the Regional
Commercial Centre through appropriate standards in the Land
Use By-law.
LU-24 Council shall undertake the evaluation of public parking lots by
taking inventory of parking stalls in the Regional Commercial
Centre to determine surplus lands that may be appropriate for
infill development.
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LOCAL CENTRE LAND USE DESIGNATION
Local Centres are the central service areas in communities outside of the
Regional Centre. Each of these communities has its own history, context,
and nuance which will influence development decisions. These areas are
identified by their concentration of services and activities in a defined
central area which are surrounded by medium to low density or stable
residential neighbourhoods. Each Local Centre serves a different
population at a different scale and has a unique capacity to accommodate
growth. Local Centres should be human scaled and function as complete
communities where residents can accommodate their daily needs on foot,
by bicycle, or short vehicle trip.
The Local Centre Land Use Designation is applied to North Sydney and
Glace Bay’s downtown areas. North Sydney and Glace Bay have defined
and intact downtown areas that are primed for reinvestment and
revitalization.
NORTH SYDNEY
North Sydney’s downtown is a vibrant mix of restaurants, retail
spaces, historic residential buildings, and much more. It serves as
the centre for the northside communities of the CBRM and provides
these communities with day-to-day needs and services. The North
Sydney Marine Atlantic ferry terminal frames the northern edge of
the downtown waterfront area and carries thousands of
passengers to and from the Province of Newfoundland and
Labrador; many of which pass through North Sydney’s downtown
before boarding the ferry. North Sydney’s downtown is full of
potential and primed for reinvestment. Several prominent buildings
are underutilized or vacant and hold substantial development
opportunity. Positioning North Sydney as a Local Centre will
incentivize the redevelopment of the downtown and allow for
appropriate, incremental increases in density closer to the core of
the community.
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GLACE BAY
Glace Bay is a historic community with a defined downtown area
and well appointed residential neighbourhoods. Glace Bay’s
downtown is anchored by the popular Savoy Theatre, a Victorian
style performing arts venue that hosts artists from around the
world. As the second largest population centre in the CBRM, the
community boasts a variety of housing options in compact,
walkable neighbourhoods with easy access to family friendly
amenities. With Cape Breton University a short drive away, Glace
Bay is also central to student life. Glace Bay is envisioned to capture
its potential as a comfortable, low to medium density residential
area with access to exceptional recreation and cultural amenities.
3.8.6. Local Centre Policies
LU-25 Council shall identify the Local Centre Land Use Designation on
the Generalized Future Land Use Map in Schedule B.
LU-26 Council shall encourage Local Centres to play a prominent role
in providing housing, goods, services, employment
opportunities, recreation, and cultural activities for residents
through encouraging and prioritizing reinvestment that
increases a mixture of uses and incremental increases in
density.
LU-27 Council shall encourage new developments in the Local Centre
Land Use Designation that front onto corridors to be human-
scaled and accommodate a mixture of uses that have active
ground floor uses that animate the street and create a
welcoming and vibrant pedestrian environment.
LU-28 Council shall support the North Sydney Business Improvement
and Development Association (BIDA) and encourage the
establishment of a Business Improvement District for Glace Bay.
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LU-29 Council shall, through the Land Use By-law, encourage
pedestrian-friendly downtowns through building design
standards within the Land Use By-law.
MIXED USE CENTRE
Mixed Use Centres are areas with a concentration of residential and sales
and service uses and are generally applied to the centres of the smaller
communities within the CBRM. The Mixed Use Centres serve the everyday
needs of residents living in the immediate vicinity through a variety of
sales and service uses. Mixed Use Centres include Sydney River, Reserve
Mines, Sydney Mines, New Waterford, Dominion, and Louisbourg. These
areas will be positioned for incremental growth over the planning period.
As the Mixed Use Centres fill in with development of a similar scale to what
exists now, they begin to evolve to accommodate higher density housing
and more intensive sales and service uses.
3.8.7. Mixed Use Centre Policies
LU-30 Council shall identify the Mixed Use Centre Designation on the
Generalized Future Land Use Map in Schedule B.
LU-31 Council shall ensure an appropriate range of residential, sales
and service uses are permitted in the Mixed Use Centres to
support their incremental growth over the planning period
through appropriate provisions in the Land Use By-law.
LU-32 Council shall encourage more dense housing types be located
closer to concentrations of sales and service land uses to
preserve the character of the stable neighbourhoods that
surround the Mixed Use Centres.
LOCAL COMMERCIAL AREA
Local Commercial Areas are defined areas of sales and service activity such
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Regional Structure & Land Use 54
as malls, shopping plazas, or commercial strips that serve a local
population. These areas include Uptown Sydney, and smaller-scale sales
and service nodes in North Sydney, Glace Bay, and New Waterford. These
areas generally service the residents living in the immediate vicinity.
3.8.8. Local Commercial Area Policies
LU-33 Council shall identify the Local Commercial Area Land Use
Designation on the Generalized Future Land Use Map in
Schedule B.
LU-34 Council shall encourage a range of sales and service and
residential uses within the Local Commercial Areas through the
appropriate provisions in the Land Use By-law that support a
range of density and mixture of uses that encourages these
areas to evolve into complete neighbourhoods.
LU-35 Council shall encourage more dense housing types be located
closer to concentrations of sales and service uses to preserve
the character of the stable neighbourhoods that surround the
Local Commercial Area.
BUSINESS PARK
Business Parks consist of low impact industrial and manufacturing uses,
large format office spaces, services, and may include additional retail
businesses that service the more intensive business uses. With the region’s
history in manufacturing and a skilled and experienced workforce,
business parks are expected to play a significant role in the economic
development efforts within the CBRM.
3.8.9. Business Park Policies
LU-36 Council shall identify Business Park Land Use Designation on the
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Regional Structure & Land Use 55
Generalized Future Land Use Map in Schedule B.
LU-37 Council shall allow for a variety of light industrial and high
intensity sales and service uses in Business Parks through
appropriate provisions in the Land Use By-law for uses such as
veterinarian clinics, kennels and other animal-related services,
light industrial uses, minor and major manufacturing, research
facilities, self-storage facilities, as well as warehouse, distribution
and fulfillment centres.
LU-38 Council shall encourage large format office space to be located
within the Business Park
LU-39 Council shall permit light industrial and sales and service uses
within business parks, through provisions in the Land Use By-
law.
3.9. RESIDENTIAL LAND USE
3.9.1. Medium to High Density Residential
The MPS contains Medium to High Density Residential policies to
encourage high density levels within designated areas of the serviced
areas of the CBRM. These areas exist inside of the Service Boundary Area
and are informed by the Urban Intensification Areas within the Regional
Structure. The Medium to High Density Residential designation is
envisioned to include a compact development form with a variety of multi-
unit buildings such as apartment buildings and townhouses.
3.9.2. Medium to High Density Residential Policies
LU-40 Council shall identify the Medium to High Density Residential
Land Use Designation on the Generalized Future Land Use
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Regional Structure & Land Use 56
Map in Schedule B.
LU-41 Council shall ensure the Medium to High Density Residential
Land Use Designation is applied within the Service Area
Boundary and prohibit the application of the Medium to
High Density Residential Land Use Designation in areas not
serviced by municipal water, sanitary sewer, and storm
sewer.
LU-42 Council shall encourage a range of increasingly dense,
residential housing typologies in the Medium to High Density
Residential Land Use Designation and the Regional Centre
through appropriate provisions in the Land Use By-law.
LU-43 Council shall consider the surrounding development pattern
when evaluating a residential development that proposes to
increase the density of the immediate neighbourhood to
consider the possible traffic impacts, public amenity space,
active transportation connections, and neighbourhood
character and context. Such amendment must be done in
compliance with Policy A-16.
LU-44 Council shall provide for limited compatible sales and service
in the Medium to High Density Residential Land Use
Designation such as convenience stores, cafes or food
service, medical clinics, and day care facilities, through
appropriate provisions in the Land Use By-law.
LU-45 Council shall evaluate connections between proposed
medium and high density residential development and the
surrounding transportation network to ensure high quality
connections to active and public transportation options.
LU-46 Within the medium to high density residential areas, Council
shall consider, through site plan approval conditions within
the Land Use By-laws the following uses within the low and
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Regional Structure & Land Use 57
medium density urban residential zones:
1. Apartments over six units;
2. Small scale sales and restaurant uses
LU-47 Council shall consider increased building height in areas
where density already exists therefore limiting impact on
neighbouring residential areas. Minimum and maximum
building heights will be applied through appropriate
provisions in the Land Use By-law with the intention of
providing incremental increases in height between low
density and higher density developments.
3.10. LOW DENSITY RESIDENTIAL
The Low Residential Density Land Use Designation encourages appropriate
levels of density outside of the urban areas targeted for high density
growth but still within the Service Area Boundary. These areas are
generally suburban in form and are envisioned to evolve over time to
include incremental increases in density. These more dense housing forms
are ideally sited near connections to established transportation networks,
limiting the impact on the lower density housing while making effective
use of existing infrastructure capacity.
3.10.1. Low to Medium Density Residential
Policies
LU-48 Council shall identify the Low Density Residential Land Use
Designation on the Generalized Future Land Use Map in
Schedule B.
LU-49 Council shall ensure the Low Density Residential Land Use
Designation is applied within the Service Area Boundary and
prohibit the application of the Low to Medium Density
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Residential Land Use Designation in areas not serviced by
municipal water, sanitary sewer, and storm sewer.
LU-50 Council shall encourage a range of moderately dense residential
housing typologies in the Low Density Residential Land Use
Designation such as one unit and two unit dwellings,
townhouses, and low-rise apartment buildings through
appropriate provisions in the Land Use By-law.
LU-51 Council shall assess the surrounding development pattern when
evaluating a residential development that proposes to increase
the density of the immediate neighbourhood to consider the
possible traffic impacts, public amenity space, active
transportation connections, and neighbourhood character and
context. Such amendment must be done in compliance with
Policy A-16.
LU-52 Within the low density residential areas, Council may shall
consider, through site plan approval conditions within the Land
Use By-laws the following uses within the low and medium
density urban residential zones:
1. Apartments over six units;
2. Small scale sales and restaurant uses
Sales and service uses shall include conditions that limit their
size and location to encourage siting these uses near
intersections.
3.10.2. Historic Residential Policies
LU-55 Council shall recognize the North End of Sydney for its historical
and architectural legacy of the streetscape, and the age of old
residential buildings, with the intention of revitalizing building
conditions while maintaining heritage character through a
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Heritage Conservation District Plan.
LU-56 Council shall administer existing heritage policies and programs,
such as :
• Heritage District Conservation Plan;
• Municipal Heritage Registry; and
• Heritage Incentive Program.
LU-57 Council may consider regulating building form and design in
additional areas of the municipality to maintain the overall
heritage value by adopting new Heritage Conservation Districts.
3.10.3. Industrial Land Use Designations
The CBRM has a long history of industry. Industry and manufacturing hold
significant importance in the economic vitality and longevity of the CBRM.
Growth in these sectors will continue to be important and should be
matched with a reasonable approach to industrial land use that
encourages their responsible and sustainable development. The Industrial
Land Use Designation is applied to areas with existing medium to heavy
industrial uses and the surrounding areas that may be primed for
industrial expansion. A focused approach to industrial land use will look at
limiting potential land use conflicts by allowing for expansion of industrial
uses where they currently exist.
3.10.4. Industrial Land Policies
LU-58 Council shall identify the Industrial Land Use Designation on the
Generalized Future Land Use Map in Schedule B.
LU-59 Council shall encourage new industrial development to be
located in existing Industrial Parks or in the vicinity of other
existing industrial uses implemented through the Land Use By-
law.
Chapter 3.
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LU-60 Council shall prohibit residential development in the Industrial
Land Use Designation with the exception of dwelling units that
are incidental to the Industrial Use such as caretaker or security
accommodations.
LU-61 Council shall encourage sales and service uses in the Industrial
Land Use Designation to be of a smaller scale and intensity so as
to not detract from commercially designated lands.
LU-62 Council shall, through the Land Use By-law, provide for heavy,
medium and light intensity industrial land uses with appropriate
provisions.
3.10.5. Rural Land Use Designation
RURAL DEVELOPMENT AREA
The Rural Development Area Land Use Designation includes those areas
outside the Service Area Boundary that have a low-density development
pattern typical of rural areas and help form the identity of rural Cape
Breton. These areas include unserviced residential development typically
on larger lots fronting directly onto Provincial Highways or rural lanes.
There are pockets of sales and service development throughout these
rural areas that are aimed at convenience or specialty services. New
development proposed in the Rural Development Area is intended to
continue the low density pattern that is typical of the rural lifestyle.
Encouraging the established rural development pattern to continue will
protect the rural character that many residents hold dear.
3.10.6. Rural Development Area Policies
LU-63 Council shall identify the Rural Development Area Land Use
Designation on the Generalized Future Land Use Map in
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Regional Structure & Land Use 61
Schedule B.
LU-64 Council shall encourage development in the Rural Development
Area Land Use Designation to be consistent with the rural
character and development pattern of the existing rural areas of
the CBRM, such as through larger lot sizes and a mix of uses.
LU-65 Council shall require all new development within the Rural
Development Area to be serviced through on-site water and
sewage disposal systems.
LU-66 Council shall ensure the rural development pattern is
maintained through provisions in the Land Use By-law that
encourage larger lots and limited lot occupancy.
LU-67 Council shall recognize areas of existing concentrations of sales
and service development and encourage these sales and service
nodes to continue through appropriate provisions in the Land
Use By-law.
LU-68 Council shall provide standards for private streets within the
Subdivision By-law to facilitate rural development. In general,
private streets will be allowed in the Rural Development Area
such that they provide necessary connection between existing
developments or are determined by Council to be necessary to
facilitate a proposed development.
RURAL RESOURCE
The Rural Resource Land Use Designation includes existing or previously
developed lands that have been used in the mining, quarrying, aggregate
industries, or are being used for utility purposes. They include both active,
decommissioned, and reclaimed industrial sites. Rural Resource lands may
also include woodlots, agricultural uses including livestock operations and
farm gate sales
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3.10.7. Rural Resource Policies
LU-69 Council shall identify the Rural Resource Land Use
Designation on the Generalized Future Land Use Map in
Schedule B.
LU-70 Council shall encourage development in the Rural Resource
Use Designation to be consistent with the rural character and
development pattern of the existing rural areas of the CBRM
through appropriate standards in the Land Use By-law, such
as increased lot sizes.
LU-71 Council shall recognize areas of existing concentrations of
non-residential development and encourage these sales and
service nodes to continue through appropriate provisions in
the Land Use By-law.
LU-72 Council shall identify areas of existing operational Agricultural
uses and designate these areas Rural Development Area or
Rural Resource.
LU-72a Council shall consider measures to reduce topsoil removal on
lands with the highest agricultural value.
3.10.1. Small Community
The Small Community designation is appled to the communities of Birch
Grove, Port Morien, and Donkin. These communities exist inside the
Service Area Boundary within the Regional Structure are they are serviced
by both muncipal water and sewer. While these communities have access
to municipal services, they are still rural in nature and experience
agricultural and fishery uses. The Small Community Designation will
include a range of residential uses along with agricultural, fishery and
limited sales and service uses.
Chapter 3.
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LU-73 Council shall identify the Small Community Designation on
the Generalized Future Land Use Map in Schedule B.
LU-74 Council shall apply the Small Community Land Use
designation within the Service Area Boundary in the
communities of Birch Grove, Port Morien and Donkin.
LU-75 Council shall encourage a range of moderately dense
residential housing typologies in the Small Community
Designation, such as one and two unit dwellings, townhouses,
and low rise apartment buildings through appropriate
provisions in the Land Use By-law.
LU-76 Council shall encourage fishery and agricultural uses in the
Small Community Designation along with compatible sales
and service uses.
3.10.2. Parks and Natural Areas
PARKS AND NATURAL AREAS DESIGNATION
The Parks Designation is applied to lands that are generally used for low
impact or passive recreation. Park lands may include a higher tolerance for
development as they are assumed to include both indoor and outdoor
recreation infrastructure and amenities. Natural areas are aimed at
conservation and rehabilitation of natural ecosystems while allowing the
areas to be accessed and appreciated by the public.
3.10.3. Parks and Natural Areas Policies
LU-77 Council shall adopt a Parks and Recreation Master Plan to guide
the planning, management, and investments in CBRM parks,
open spaces, and recreational services and assets. Council shall
review this Master Plan every 10 years.
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Regional Structure & Land Use 64
LU-78 Council shall identify existing recreation amenity and
infrastructure as Parks and Natural Areas.
LU-79 Council shall provide for a range of recreation and park uses
through appropriate provisions in the Land Use By-law.
LU-80 Council shall consider through the Subdivision By-law, the
dedication of lands for public purposes, or cash-in-lieu, as part
of the subdivision process so long as the lands:
a. Provide access to a watercourse or shoreline; or
b. Are strategically identified for recreation purposes
within the Recreation Master Plan; or
ENVIRONMENTALLY SENSITIVE AREA DESIGNATION
The CBRM is home to a diverse natural environment characterized by
three different ecodistrict classifications under the Nova Scotia
Department of Natural Resources; the Cape Breton Highlands, Bras d’or
Lowlands, and Cape Breton Coastal. These classifications recognize areas
of unique geology, soils, topography, and climate. These unique areas
combine with urban and rural forests, watercourses, and wetlands to
create the CBRM’s natural systems that provide residents with clean air,
water, and soil and contribute to the betterment of the community’s
quality of life.
The Environmentally Sensitive Area Land Use Designation is applied to
areas where development or disturbance would disrupt or destroy the
natural function of an environmental feature. These areas may be
considered for passive recreation to allow residents and visitors to
experience and appreciate nature but permanent disturbance of these
areas will be prohibited.
3.10.4. Environmentally Sensitive Areas Policies
LU-81 Council shall identify Environmentally Sensitive Areas on the
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Generalized Future Land Use Map in Schedule B.
LU-82 Council shall discourage development on Environmentally
Sensitive Areas through appropriate provisions in the Land Use
By-law.
LU-83 Council shall establish a Floodway Area using the best available
floodplain data depicting the 1 in 20-year flood events through
provisions in the Land Use By-Law aimed at limiting
development in this highest risk area to passive recreational
uses.
LU-84 Council shall establish a Floodway Fringe Area using the best
available floodplain data through provisions in the Land Use By-
Law and provide direction on development being subject to
restrictions aimed at limiting risk to public safety and property.
LU-85 Council shall explore acquiring lands within environmentally
sensitive areas to limit risk to public safety and property.
LU-86 Council shall manage coastal development in a manner
consistent with the Province of Nova Scotia.
LU-87 Council shall explore opportunities to acquire lands in
watersheds and well-field areas to support the long term
provision of clean drinking water.
3.10.5. Federal Lands Designation
Federally owned areas can be found inside and outside of the Service Area
Boundary. CBRM’s boundary also surrounds Eskasoni and Membertou
Lands. CBRM has no authority to designate these lands, however, they are
provided on the Future Land Use Map for ease of use.
LU-88 Council shall identify the Federal Land Use Designation on the
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Generalized Future Land Use Map in Schedule B.
LU-89 Council shall label Eskasoni and Membertou lands on the Future
Land Use Map in Schedule B.
LU-90 Council shall, in partnership with Eskasoni and Membertou,
identify fee-simple lands within CBRM and discuss opportunities
to designate them and zone them according to their proposed
use at no cost to Eskasoni and Membertou.
3.10.6. Primary Corridors Designation
The Primary Corridors are main transportation links that connect the
Regional Centre and Local Centres, and Local Centres and Mixed Use
Centres to one another. These are critical transportation routes used by
residents and visitors to commute to work and school, to see new places
and try new things, and to access the greatest of what the CBRM has to
offer. Primary Corridors currently support a mixture of uses and have
been identified as appropriate locations for increased intensity of land use.
Focusing on the development of Primary Corridors including incremental
increases in land use intensity allows them to evolve to meet the needs of
the neighbourhoods they serve while also protecting the integrity of those
primarily residential areas.
The MPS identifies four Primary Corridors: Kings Road Corridor; serviced
portions of the Sydney Glace Bay Highway; Main Street Sydney Mines, and
Highway 28 corridor from Glace Bay to Dominion.
KINGS ROAD CORRIDOR
Kings Road connects Downtown Sydney to the Sydney River Mixed-Use
Centre. It is home to a mixture of uses including hotels, apartment
buildings, restaurants, and other sales and service uses. Kings Road is the
primary corridor into Downtown Sydney and carries residents and visitors
into the culture and entertainment hub of the Region and therefore
provides the first impression of the community’s urban landscape. It also
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Regional Structure & Land Use 67
brings people through the centre of Sydney River, where there is a
concentration of amenities and services that serve the surrounding well
established residential neighbourhoods. Kings Road also contains an
entrance and connection to the community of Membertou. The intended
direction for this corridor looks at using its mixed use foundation to set the
stage for infill development that is increasingly dense as it approaches
Downtown Sydney and the centre of Sydney River. High quality, active
transportation connections between Downtown Sydney and Sydney River
are intended to evolve over time to support each of these areas becoming
increasingly walkable neighbourhoods with development that is right-sized
for each area.
SYDNEY GLACE BAY HIGHWAY
The Sydney Glace Bay Highway Corridor is the key transportation link
between the two largest population centres in the CBRM; the Regional
Centre, and Glace Bay. This Primary Corridor is home to the Grand Lake
Regional Commercial Centre, Cape Breton University, the J.A. Douglas
McCurdy Sydney Regional Airport, and mixture of residential, sales,
service, and industrial uses. Although access off this corridor is controlled
by the Province, it holds substantial infill development opportunity and will
be positioned for more intensive development aimed at growing the area
around Cape Breton University and providing additional amenity to the
residents of Glace Bay.
HIGHWAY 28 CORRIDOR
The Highway 28 Corridor connects the Local Centre of Glace Bay to the
Mixed-Use Centre of Dominion. This Primary Corridor is a key connection
to and through areas that are primed for increased investment and
development. Glace Bay is a significant population centre with a historic
downtown and stable residential area. It has the framework in place to
become a complete community. Dominion is a community with deep roots
as well and home to the popular Dominion Beach Provincial Park. The
connection between Glace Bay and Dominion is envisioned to evolve over
the planning period with increased sales and service offerings developing
on the Corridor and increasing dense residential housing on the
periphery.
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MAIN STREET SYDNEY MINES
Main Street in Sydney Mines connects the Trans Canada Highway to the
Mixed Use Centre designation in central Sydney Mines. The primary
corridor is a key gateway into Sydney Mines and exhibits a mix of
commercial and residential uses. As an important connection to Sydney
Mines, the area is poised to continue to exhibit a mix of commercial and
residential uses over the lifespan of the Planning Strategy.
3.10.7. Corridor Policies
LU-91 Identify the Kings Road, Highway 4, and Highway 28 Primary
Corridors on the Generalized Future Land Use Map in Schedule
B.
LU-92 Council shall encourage a mixture of sales and service, high
density residential, institutional, and industrial uses on Primary
Corridors through appropriate provisions in the Land Use By-
law.
LU-93 Council shall identify opportunities for increased access to
public and active transportation along Primary Corridors
through the evaluation of public transit stops and routes,
pedestrian and bicycle connections, and access to crossing
points.
LU-94 Council shall identify opportunities for wayfinding
improvements along Primary Corridors to showcase the
importance of the places travellers are going to and coming
from through the creation of a wayfinding plan
3.11. GENERAL LAND USE POLICIES
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The following section of the Municipal Planning Strategy provides general
policies which apply broadly in various situations pertaining to land use
across the municipality. General policies related to housing, including
home occupations, are provided in the Housing Choice and Affordability
chapter.
3.11.1. Accessory Development
LU-95 Council shall regulate accessory uses, through the Land Use
By-law, by applying thresholds and criteria for uses which may
be considered ancillary to the main use.
3.11.2. Other Development
LU-96 Council shall regulate medical clinics and long term care
facilities by correlating the sale of these health care services
with the importance of the public street/road used to access
them, these uses shall be permitted through a combination of
as-of-right, site plan approval, and zone amendments done in
compliance with Policy A-16.
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3.11.3. Non Conforming Uses and Existing
Development
Generally, development that is inconsistent with the land use policies
establishing in a Municipal Planning Strategy are not permitted. CBRM has
a storied past, including a proud industrial past. As such, many land uses
exist is locations that may be considered inappropriate by today’s modern
standards. The Municipal Government Act allows certain protections for
these non-conforming uses that were legally developed at the time to
ensure than can continue to operate. The Act stipulates that these uses
lose their non-conforming status when the use ceases operations for a
continuous period exceeding six months. Additionally, the Act provides
tools for municipalities to extend non-conforming status, adding flexibility
to these unique uses. In addition to the provisions of the Municipal
Government Act, additional flexibilities will be given to existing business
developments that are not in compliance with zone provisions.
LU-97 Council shall, through the Land Use By-law, extend the period
before a non-conforming use is considered discontinued to
twelve months.
LU-98 Council shall, through Land Use By-law, permit the expansion
of a non-conforming structure provided the expansion does
not increase the overall non-conformity of the structure.
LU-99 Council shall, through the Land Use By-law, permit the
expansion of a non-conforming use to a similar non-
conforming use through site plan approval.
LU-100 Council shall acknowledge the legitimacy of developments that
existed legally prior to the adoption of the Land Use By-law if
the tax assessment category remains consistent with the
development type. Council shall permit as a right a change in a
use to a similar, or relatively innocuous use. Any expansion of
an existing business development shall be done by Site Plan
Approval.
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3.11.4. Recreational Vehicles
Recreational Vehicles can sometimes be used throughout CBRM as an
alternative to a seasonal residential structure. In this case, although
technically a vehicle, the land use impacts are similar to a building and
have land use impacts. CBRM wishes to regulate Recreational Vehicles,
while providing flexibility for people to use these vehicles for recreational
dwellings but create a threshold for how many recreational vehicles can
exist on a lot before it triggers the definition of a campground.
LU-101 Council shall, through the Land Use By-law, include a definition
for campground that includes a threshold more than two
Recreational Vehicles.
LU-102 Council shall, through the Land Use By-law, permit
campgrounds in excess of six sites in the Rural Areas through
Site Plan Approval that assess that application against
nuisance impacts, access, and on-site amenities and services.
3.11.5. Community Services and Facilities
CBRM has many communities, settlement areas and hamlets that feature
community spaces, such as places of worship, halls, schools, and other
community facilities along with municipal buildings. These facilities are
often integral to a strong sense of identity and place within communities.
Council appreciates the important role these facilities have in communities
and intends to continue allowing these uses broadly across zones.
Additionally, educational, health care (including medical clinics),
recreational facilities, and protective services provide important services to
communities across CBRM. Council wishes to allow these services to
locate in most locations across the municipality.
In recent years, many of these communities have witnessed these facilities
closing for a variety of reasons. These structures are broadly recognized
for their prominence in community and have tremendous value as
community landmarks. These structures have opportunities for
permissive and broad adaptive re-use, as such, Council would like to
Chapter 3.
Regional Structure & Land Use 72
promote redevelopment of these structures through a Site Plan Approval
process.
LU-103 Council shall, through the Land Use By-law, permit Community
Uses and Facilities in many zones across CBRM.
LU-104 Council shall, through the Land Use By-law provide provisions
to allow medical, educational, and supportive housing uses
across many residential and commercial zones in the
municipality with the intention of siting these services near
amenities, services, and residential areas.
LU-105 Council shall, through Site Plan Approval and provisions
established in the Land Use By-law, permit the adaptive re-use
of former community, educational, and municipal facilities,
provided they do not negatively impact the surrounding
neighbourhood and provide a community benefit, such as new
housing or service.
LU-106 Council shall, through the Land Use By-law, permit shared
dwellings at appropriate scales, within most residential zones.
3.11.6. Home Occupations
Home occupations provide for more services in areas where traditional
commercial areas may be limited. Council supports home occupations
and recognizes their benefit; however, the policies below attempts to
manage these uses and their impacts throughout CBRM.
LU-107 Council shall, through provisions in the Land Use By-law,
permit home occupations within the Service Area Boundary
through Site Plan Approval, provided that :
a. The home occupation is clearly secondary to the main
residential use;
b. The home occupation is not visible from the street and
Chapter 3.
Regional Structure & Land Use 73
does not require exterior alterations that would affect
the primary residential character of the property;
c. The home occupation is limited to uses that not
involve excessive traffic, including truck traffic for the
purpose of moving goods.
Chapter 4.
Municipal Infrastructure and Services 74
Chapter 4.
Municipal Infrastructure
and Services
.
Chapter 4.
Municipal Infrastructure and Services 75
4.1. PURPOSE
CBRM is an amalgamation of former industrious municipalities, which has
led to an expansive road network, as well as water, sewer, and stormwater
systems which span Sydney, Glace Bay, New Waterford, Sydney Mines,
Louisbourg, and the communities in between. Due to the size of
infrastructure systems, and the distance between communities which
CBRM must provide services to, maintenance and delivery of these
services has caused financial strain on the municipality. It is vital the CBRM
creates a long-term plan to ensure the efficient use and development of
services and infrastructure, while also ensuring that necessary services are
maintained throughout all of CBRM.
The Municipal Infrastructure chapter outlines Council’s priorities for
infrastructure maintenance and investment. A policy framework for
proactive infrastructure decisions will be set in place to support an
approach which considers the CBRM’s structure and intended growth
areas. The intention of this chapter is to set a standard for investment that
is aligned with the Regional Structure, ensuring an increased level of
investment in intensification areas.
Chapter 4.
Municipal Infrastructure and Services 76
4.2. OBJECTIVES
Maintain an accurate and up to date inventory of
municipally owned infrastructure and assets.
Encourage the effective and efficient use of existing
municipal infrastructure through the use of a defined
Service Area Boundary and targeted intensification areas.
Maintain a high quality standard for piped infrastructure to
ensure the long term protection of the natural environment.
Maintain a sustainable and effective level of emergency
services that ensures the safety of all residents.
Advocate for equitable access to high-speed internet
infrastructure installation throughout the CBRM.
Create a policy for infrastructure investment that will
facilitate the inclusion of Regional Structure and
intensification areas as key components.
Critically assess opportunities to manage infrastructure
needs in new and innovative ways that support the
sustainable growth of the CBRM.
Chapter 4.
Municipal Infrastructure and Services 77
4.3. WATER AND WASTEWATER
Central services, such as water and sanitary services exist throughout the
CBRM. These services provide for a more efficient and safe use of land,
but come at a significant public cost. Throughout the region, there are
areas serviced by water, sanitary or both. These areas are mostly
concentrated within urban-type settlement areas. These services
represent a significant cost to the public, both in initial development,
lifecycle replacement, and on-going maintenance. These serviced areas
mostly have capacity to facilitate more development, making for an
efficient and sustainable use of the infrastructure and municipal assets
dedicated to each system. These areas are delineated on Schedule B.
Future Land Use Map as the Service Area Boundary. Increased residential
density and greater intensity of development, including a greater mix of
land uses is directed to areas within the Service Area Boundary to assist
the municipality in becoming more financially resilient and promote the
efficient use of services.
The provision of safe drinking water is a significant public health
responsibility for the CBRM. The municipality provides water to residents
and properties throughout the region through the Cape Breton Regional
Municipality Water Utility. The Utility supplies water to approximately
72,000 people. The network is comprised of five water treatment plants,
six pumping stations, eleven water storage tanks, eight water sources, 770
kilometres of pipe, 2,900 hydrants and thousands of metres and
valves. Table 1 below outlines the water services by community, area and
populations served.
Chapter 4.
Municipal Infrastructure and Services 78
Table 1. Water Systems throughout CBRM.
Treatment
and
Pumping
Source of
Supply
Gallons
Pumped Per
Day
Area Served Population
Sydney Middle Lake
Well Field 2,800,000
Sydney, Grand Lake Road, Mira
Road, Prime Brook, Sydney River,
Coxheath, Westmount,
Edwardsville, Membertou, South
Bar, Lingan Road, Pine Tree Park
27,936
Glace Bay MacAskill's
Brook Dam 1,800,000
Glace Bay, Dominion, Reserve
Mines, Tower Road, Donkin, Port
Caledonia, Birch Grove, Port
Morien
19,550
Northside Pottle Lake 2,000,000
North Sydney, Sydney Mines,
Upper North Sydney, Alder Point,
Balls Creek, Bras d'Or, Florence,
Georges River, Leitches Creek, Little
Bras d'Or, Little Pond, Mill Creek,
Point Aconi
16,465
New
Waterford
Waterford
and Kilkenny
Lake
1,100,000 New Waterford, Scotchtown, River
Ryan, New Victoria, Lingan 8,268
Louisbourg Kelly Lake 170,000 Louisbourg, Fortress of Louisbourg 856
Floral
Heights Well 5,000 Floral Heights 166
Gardiner
Mines Well 2,000 Strang Road area 34
Total 7,877,000 72,419
Chapter 4.
Municipal Infrastructure and Services 79
The CBRM provides sanitary system services to urban settlement areas
with some minor collection systems provided outside of the Service Area
Boundary. CBRM’s aging infrastructure and population decline has put
considerable strain on the municipality’s ability to provide necessary
upgrades to its treatment and collection network. Currently, the
municipality operates two wastewater treatment plants (Battery Point,
Dominion-Bridgeport, Villa), with a third coming online in 2023 (Sydney
Harbour West). The Municipality has recently made significant upgrades to
its wastewater treatment systems to reduce the amount of raw outflow
into the ocean. With the Sydney Harbour West Treatment Centre coming
online in 2023, the areas of Coxheath, Westmount, Sydney River and
Edwardsville Industrial Park will be well-positioned for future growth and
development, while reducing demand on North End Sydney’s Battery Point
Wastewater Treatment Plant. The Municipality is working with the
Province of Nova Scotia and the Government of Canada to ensure
treatment upgrades are made to appropriate systems, in accordance with
federal regulations. In addition to these three facilities, CBRM operates the
Villa Drive Recirculating Sand Filter in Bras d’Or, five treatment lagoons, 41
outfalls, 14 combined sewer overflows, 55 lift stations and five community
septic tanks. The goals of the MPS, to direct growth and development to
the Service Area Boundary, is to allow for a more efficient growth and use
of available funds from the CBRM’s tax base, promoting a more fiscally
responsible delivery of Municipality’s wastewater systems.
4.3.1. Water and Wastewater Policies
MI-1 Council shall, through the Land Use By-law, promote the
sustainable provision of water and wastewater services by
permitting smaller lot sizes, frontages, and increased density
and intensity of land use in areas within the Service Area
Boundary where water, sanitary, or both exist.
MI-2 Council shall, through the Land Use By-law, require new
development within the Service Area Boundary to connect to
water, sanitary or both, where service connections exist. Council
Chapter 4.
Municipal Infrastructure and Services 80
shall also require the extension of piped municipal
infrastructure to service new developments in compliance with
its Service Delivery Policy.
MI-3 Council shall discourage the expansion of water and sanitary
services outside the Service Area Boundary unless such services
are required for the protection of life and/or the environment.
MI-4 Council shall, as an exception to Policy MI-3, permit transmission
mains outside of the Service Area Boundary if these lines are
necessary to connect to a water source or treatment facility.
MI-5 Council shall, through the Land Use By-law, promote safe, clean
drinking water by limiting land uses within areas designated as a
Public Water Supply Watershed or Public Wellfield Recharge
Area on Schedule B. Generalized Future Land Use Map.
MI-6 Council shall ensure the protection and integrity of its drinking
water sources by implementing, monitoring and updating the
following plans:
• Pottle Lake Source Water Protection Plan;
• Waterford Lake Source Water Protection Plan;
• Kilkenny Lake Source Water Protection Plan;
• MacAskill Brook Dam Source Water Protection Plan;
• Middle Lake Road Well Groundwater Protection Plan; and
• Kelly Lake Source Water Protection Plan.
MI-7 Council shall ensure that adequate upgrades are made to the
water, stormwater, and sanitary systems to accommodate the
strategic development of lands within the Service Area
Boundary with a focus on Intensification Areas provided on
Schedule B Generalized Future Land Use Map.
MI-8 Council shall seek partnership with the Province of Nova Scotia
and Government of Canada to develop wastewater treatment
systems for at-risk sewage outflows, including Glace Bay, Port
Chapter 4.
Municipal Infrastructure and Services 81
Morien, Louisbourg, Donkin, New Waterford and New Victoria,
in accordance with federal regulations.
MI-9 Council shall ensure the approval of new developments are
contingent on the capacity of the water, stormwater, and
sanitary network, including treatment facilities, by assessing
capacity at the application stage.
MI-10 Council shall require developers to contribute toward the cost of
necessary upgrades to water, stormwater, and sanitary
infrastructure to accommodate proposed developments.
MI-11 Council shall, where possible, encourage the use of gravity flow
systems over more costly lift stations, when making
improvements and upgrades to sanitary systems.
MI-12 Council shall require a Water Source Assessment Study
prepared by a licensed hydrogeologist or engineer for uses that
have a high demand on water consumption and discharge, such
as large subdivisions or apartment complexes.
4.4. ON-SITE SERVICES IN RURAL
AREAS
CBRM has many thriving and beautiful rural communities. Development in
these areas, outside of the Service Area Boundary, feature, for the most
part, on-site services through private well and sewage disposal
systems. Notwithstanding exceptions, it is a policy of Council to prohibit
the expansion or introduction of municipal water or sanitary services in
these areas. This means that density and the intensity of development
needs to be closely monitored and appropriately managed to mitigate
environmental risks associated with too much draw on groundwater
resources or on-site sewage disposal system pollution. While the Province
of Nova Scotia approves the design and placement of on-site sewage
Chapter 4.
Municipal Infrastructure and Services 82
disposal systems, the placement of wells and the sustainability of
groundwater sources are not regularly monitored.
4.4.1. On-Site Services in Rural Areas Policies
MI-13 Council shall, through the Land Use By-law, limit land uses in
areas outside of the Service Area Boundary.
MI-14 Council shall, through the Land Use By-law and Subdivision By-
law, control density outside of the Service Area Boundary
through increased lot size requirements, increased lot frontage
requirements, and managing the creation of private roads.
4.5. UTILITIES
CBRM works with private and public operators of utilities, including NS
Power, Emera, Bell, Rogers and Eastlink to site infrastructure that is critical
to how residents of CBRM function in their day-to-day lives. This
infrastructure can take many forms, including telecommunication lines,
telephone poles, power lines and substations, water towers and lift
stations. It is important that CBRM allows for the necessary provisions to
allow these structures and uses to locate across the municipality to ensure
the efficient and effective utilities are provided to residents and businesses
throughout the region.
4.5.1. Utilities Policies
MI-15 Council shall permit the development of utility-related uses and
structures in all zones, subject to appropriate general
provisions.
MI-16 Council shall, through the subdivision by-law, allocate the
necessary space within the public right-of-way of new streets for
Chapter 4.
Municipal Infrastructure and Services 83
utilities to promote future utility corridors that are adaptive to
new technologies.
MI-17 Council shall support the growth and access of high speed and
reliable internet access, especially to rural areas of the CBRM.
4.6. SOLID WASTE MANAGEMENT
CBRM’s manages solid waste throughout the municipality through the
Solid Waste department. The department operates a waste management
facility (C&D landfill) in Sydney and administers curbside pick-up of
garbage, recycling, and compost material for residential eligible premises
in the municipality.
In addition to municipally provided services, there may be the need for
salvage yards or construction and demolition debris facilities to be located
throughout the municipality. These uses should be strictly managed to
minimize environmental risks. As well as adhering to any municipal
landuse restrictions these facilities are required to obtain permits from the
regulating provincial departments.
4.6.1. Solid Waste Management Policies
MI-18 Council shall, through the Land Use By-law, consider any new
solid waste facilities to be located outside of the Service Area
Boundary.
MI-19 Council shall, through the Solid Waste By-law and policies,
promote reduction, reuse & recycling, as a means to increase
waste diversion which in turn will increase the lifespan on the
solid waste facility.
MI-20 Council shall work with the Province of Nova Scotia to
discourage and prevent illegal dumping throughout the
municipality.
Chapter 4.
Municipal Infrastructure and Services 84
4.7. ENERGY
Communities across Atlantic Canada are modernizing land use regulations
in support of energy transition, transitioning from a dependence on fossil
fuels, to more renewable sources of energy. CBRM is a large municipality,
with many forested lands well positioned for energy generating uses.
Council is supportive of alternative forms of energy generation and the
policies below aim to manage these uses, including wind and solar energy.
4.7.1. Solar Collector Policies
MI-21 Council shall, through the Land Use By-law, permit solar
collectors as an accessory use in all zones, provided they meet
the required yard setbacks and lot occupancy requirements.
Rooftop solar collectors are exempted from the height
requirements of buildings.
MI-22 Council shall, through the Land Use By-law, permit solar
collectors as a main use in all zones, provided they meet the
required yard setbacks and lot occupancy requirements.
4.7.2. Wind Turbine Policies
MI-23 Council shall, permit large scale wind turbine, which shall be
considered to those with a nameplate capacity of 100 kilowatts
or greater uses, as main uses in all zones in all zones in all zones
of the Land Use By-law, subject to lot occupancy and setback
requirements.
MI-24 Council shall permit small scale wind turbines, which shall be
considered to be those with a nameplate capacity of under 100
kilowatts, as accessory uses in all zones in all zones of the Land
Use By-law, subject to lot occupancy and setback requirements
Chapter 5.
Environment and Climate Change 85
Chapter 5.
Environment and Climate
Change
Chapter 5.
Environment and Climate Change 86
5.1. PURPOSE
The Environment and Climate Change chapter sets the CBRM’s framework
for environmental protection and Climate Change adaptation. Policy
direction is aimed at protection of current and potential water supply,
adaptation measures in public and private infrastructure, thresholds for
preservation and conservation of natural areas including urban and rural
reserve lands, setting the tone for ecological stewardship over the horizon
of the MPS, and taking a regional and collaborative approach to climate
change.
5.2. OBJECTIVES
Protect the public water supply, ensuring clean, safe and
reliable sources of potable water for all residents of the
CBRM.
Chapter 5.
Environment and Climate Change 87
Adopt sophisticated storm water requirements, including
the preservation of the CBRM’s wetlands as features of
stormwater management.
Establish policies to direct the CBRM’s approach to Climate
Change adaptation and mitigation.
Integrate sustainable land management practices into the
development process to ensure long term care and
stewardship of the CBRM’s natural environment.
Align with the Province’s approach for coastal and riparian
development, with special attention to preserving public
access to coastal areas while protecting the coastline from
uses that may exacerbate coastal erosion.
Establish a framework for incorporating local and traditional
knowledge into development decisions.
Collaborate with neighbouring municipalities on climate
adaptation and mitigation measures and programs.
5.3. COASTAL MANAGEMENT
The CBRM is a coastal community with hundreds of kilometres of coastal
shoreline, islands, many lakes and rivers. Waterfront properties are a
significant draw for the Municipality; however, development should be
managed to mitigate environmental risks in these sensitive areas.
In inland areas, shores along lakes and rivers provide an important
ecological habitat and can provide necessary filtering from surface water
run off, protecting water quality. With this in mind, it is necessary for the
municipality to regulate development along shorelines.
Additionally, in 2019, the Province of Nova Scotia adopted the Coastal
Protection Act; however, as of the adoption of this Plan, there are no
Chapter 5.
Environment and Climate Change 88
regulations to implement this legislation. Understanding that the Province
will be developing forthcoming tools to manage coastal development,
CBRM will follow provincial regulations in its approach to standards,
including, what’s expected to be a minimum vertical elevation, or building
elevation height along the coast and shores for Bras d’Or Lakes. Council
will however, apply a minimum horizontal setback from the ordinary high
watermark from inland lakes, wetlands and watercourses.
E-1 Council shall follow the regulations and standards enabled by
the Coastal Protection Act.
5.4. STORMWATER MANAGEMENT
CBRM manages stormwater runoff throughout the region through various
systems, from piped systems in the urban settlement areas to ditch and
culverts and overland site drainage in the rural areas. The system collects
and carries stormwater from developed areas and is discharged at various
watercourses. In recent years, the municipality has experienced several
severe storm events, which have led to negative impacts, including
significant flooding, such as the 2016 Thanksgiving Flooding in
Sydney. Responsible stormwater management practices will allow CBRM
to adapt its infrastructure and use its natural systems to become more
resilient to adverse weather events.
5.4.1. Stormwater Management Policies
E-3 Council shall prepare a Stormwater Management Policy to
inform design criteria and manage development through
appropriate by-laws.
E-4 Council shall, through the Land Use By-law, create a Flood Risk
Overlay to manage development and require Low Impact Design
in future public infrastructure investments and private
development to reduce flood risk in this area.
Chapter 5.
Environment and Climate Change 89
E-5 Council shall implement the findings and recommendations of
the Wash Brook Floodwater Intensity Mitigation Project.
E-6 Council shall, require drainage plans to be submitted as a part
of all Building Development Applications for construction of all
new main buildings in compliance with CBRM’s Building By-law
and Stormwater Management Policy.
E-7 Council shall require drainage plans to be submitted in
compliance with the Subdivision By-law.
5.5. CLIMATE CHANGE
CBRM’s location on an island on the Atlantic Ocean, with many inshore
lakes, rivers and streams, makes the community particularly susceptible to
the risks of climate change and rising sea levels. Council will consider
climate change impacts and mitigation measures in future decision-
making, to ensure residents, future generations of residents,
infrastructure, and built assets are adaptive to climate change.
E-8 Work with the Province of Nova Scotia and Federal Government
and local partners to implement and review the Climate Change
Action Plan. A review may consider:
c. Integrates climate change considerations into
municipal planning strategies, policies, by-laws,
projects, programming and budgets;
d. Identifies emission reduction targets and includes a
greenhouse gas inventory that evaluates progress;
e. Identifies targets, policies, and actions around
renewable energy targets and energy conservation;
f. Form policies and infrastructure renewal that
promotes resiliency to climate change impacts.
E-9 Council shall, work with energy proponents and Nova Scotia
Chapter 5.
Environment and Climate Change 90
Power in the future siting of renewable energy projects within
the municipality.
E-10 Council shall encourage the development of Electrical Vehicle
Charging Stations as accessory uses, in all zones, through
provisions in the Land Use By-law.
E-11 Council shall work to convert its fleet of municipal vehicles,
including transit buses to Electric Vehicles.
E-12 Council shall promote excellence in energy efficiency in the
construction of new civil buildings or in the renovation and
retrofitting of municipal assets.
Chapter 6.
Housing Choice and Affordability 91
Chapter 6.
Housing Choice and
Affordability
.
Chapter 6.
Housing Choice and Affordability 92
6.1. PURPOSE
The CBRM is made up of communities with distinct residential
neighbourhoods shaped by a unique history. Residential neighbourhoods
built by mining companies to house workers and their families, compact
urban neighbourhoods on the periphery of downtowns, and modern
suburban neighbourhoods on the outskirts of the Regional Centre all serve
as reminders that housing is often built from circumstance and will evolve
to meet the needs of the community. The CBRM’s approach to housing is
one which intends to respect the established development pattern of
these historic and valued neighbourhoods while recognizing opportunities
to evolve to meet the community’s current need and general changes in
demand. This will be achieved through a balanced approach to density,
targeting areas with existing high intensity land use and a high level of
municipal infrastructure investment for more compact and higher density
residential housing types. This balance will also be achieved through role
definition and establishing positions of advocacy.
The Housing & Affordability chapter responds to the community concerns
for the future of housing in the CBRM. Policy directives for affordable
housing programs, the approach to residential density, and relationship
building with the development and property management communities
are provided. This chapter will introduce policy for Council to use when
encouraging and supporting increasingly dense housing types within the
Service Area Boundary and also provide criteria for evaluating housing
projects outside of areas of intensification.
6.2. OBJECTIVES
Prioritize the equitable provision of safe, adequate housing
for all residents of the CBRM.
Encourage new residential developments to include a
variety of unit types at a range of price points.
Chapter 6.
Housing Choice and Affordability 93
Encourage an increased supply of rental units throughout
the CBRM.
Encourage a wide variety of housing types that are
responsive to the evolving demographics of the CBRM.
Ensure affordable housing projects are located in areas with
sufficient and appropriate municipal services and consider
the efficient use of land and amenity.
Build strong relationships with the development community
to ensure effective two-way communication of market
demand and pressure.
Encourage infill development that is in keeping with
neighbourhood character while encouraging gentle
increases in density to support the efficient use of existing
infrastructure.
6.3. INCREASING THE HOUSING
SUPPLY
CBRM is comprised of former villages, towns and cities within the former
Cape Breton County. Since the second half of the last century, the
population, exacerbated by industries closing, has seen a steady decline. A
consequence of this reality is a housing supply that is older, in need of
renewal and skewed toward home ownership. Recent census data
suggests that the population has stabilized and recent growth and
changing demographics has demonstrated the need for a more diverse
housing stock, with a mix of typologies, including smaller units and an
increase in the rental market. In addition, CBRM is aligning with the
Province of Nova Scotia to attract new residents and accelerate population
growth beyond standard projections.
Chapter 6.
Housing Choice and Affordability 94
6.3.1. Housing Diversity Policies
H-1 Council shall, through the Land Use By-law, enable a variety of
housing typologies including one unit dwellings, two unit
dwellings, townhouses, apartment buildings, converted
dwellings, and manufactured homes.
H-2 Council shall establish standards within the Land Use By-law to
enable more residential density within the Service Area
Boundary, such as through increased lot occupancy and
reduced frontage requirements, to encourage a broader
spectrum of housing forms within existing built-up areas.
H-3 Council shall monitor land supply and zone amendment
applications throughout CBRM to ensure that the housing needs
of the community are being managed.
H-4 Council shall encourage student housing to be developed near
Cape Breton University and the Nova Scotia Community College.
H-5 Council shall monitor housing tenures within the Regional
Centre, Local Centre and Mixed Use Centre designations to
promote a balance of rental and homeownership opportunities
are available to residents.
H-6 Council shall explore financial incentives for housing
development and redevelopment, through geographically
targeted areas, focused on the Regional Centre and Local Centre
designations. These incentives shall be geared toward new
housing, affordable housing, and rental housing opportunities.
H-7 Council shall seek opportunities to promote efficiencies within
the development process
H-8 Council shall seek opportunities to promote collaboration across
departments to create a seamless process for proponents and
Chapter 6.
Housing Choice and Affordability 95
those interested in developing residential or mixed-use
properties
H-9 Council shall explore opportunities to identify internal or
external (agencies) project champions to service larger scale
development projects.
6.3.2. Supportive Housing Policies
Although not a direct responsibility of the municipality, the provision of
supportive housing for vulnerables persons should be encouraged within
CBRM. These policies provide guidance for siting and future partnerships.
H-10 Council shall encourage supportive housing for people
experiencing barriers to safe, secure and affordable housing,
including but not limited to, seniors, persons fleeing violence or
abuse, and persons with disabilities.
H-11 Council shall establish standards within the Land Use By-law to
facilitate the integration of supportive housing into residential
areas that:
a. Maintain compatibility and character with the host
neighbourhood;
b. Supportive Housing over 9 beds be permitted through
Site Plan Approval in all zones, subject to regulations
regarding parking, landscaping, building location on a
lot, stormwater management, and access
management.
H-12 Council shall permit, through the Land Use By-law, shared
dwellings within all areas of CBRM, but manage the number of
rooms outside the Service Area Boundary.
Chapter 6.
Housing Choice and Affordability 96
6.3.3. Secondary Suites and Accessory Dwelling
Policies
Secondary suites within existing dwellings and accessory dwelling, located
in the rear yard of existing dwellings, provide an option for gentle increase
in density in existing built up areas. It also provides an option for revenue
generation amongst homeowners, while increasing the diversity of
housing tenure within the municipality.
H-13 Council shall, through provisions in the Land Use By-law, permit
secondary suites and accessory dwelling units throughout the
jurisdiction of the CBRM.
6.4. HOUSING AFFORDABILITY
The provision of affordable housing is a core responsibility of the
Government of Nova Scotia and the Government of Canada; however,
CBRM commits to partnerships to support and incentivize increasing the
supply of affordable housing across the municipality.
H-14 Council shall explore opportunities to partner with other levels
of Government and agencies to increase the supply of
affordable housing across CBRM.
H-15 Council shall pursue funding and partnership opportunities to
develop housing strategies for CBRM that aims to ensure an
adequate supply of affordable housing and that core housing
needs are identified and appropriate actions are prioritized.
H-16 Council shall encourage the location of affordable housing
within the Service Area Boundary, in close proximity to services,
community facilities, and transit with provisions in the Land Use
By-law by permitting a range of housing types and densities.
Chapter 7.
Integrated Mobility 97
Chapter 7.
Integrated Mobility
Chapter 7.
Integrated Mobility 98
7.1. PURPOSE
In recent years, there has been growing momentum to build a
transportation network which offers travelers options that are sustainable,
enjoyable and healthy. Enabling more people to walk, bicycle, take transit
or use other sustainable modes requires rethinking the design of our
transportation system and the design of our communities.
The policy direction identified in this chapter ties back to this shift in how
people want to live and travel to and within CBRM today, building on
recent work and existing initiatives to rethink and transform the
transportation network over the life of this plan.
The Integrated Mobility chapter is the policy framework for implementing
the upcoming Active Transportation Master Plan and sets the overall
direction for transportation-related topics. This chapter will set
expectations for transportation related services like municipal streets,
trails, and pathways, as well as public transportation and accessibility, for
both inside and outside the Service Area Boundary. Criteria for
transportation network expansion will be introduced to support mindful
infrastructure decisions to limit planned expansion of the road network to
the extent possible to reduce infrastructure costs and encourage a shift to
non-private vehicle modes that will support a more sustainable and
resilient transportation network. This represents a significant shift in
CBRM’s approach to transportation approach, and it’s very important to
consider its implications.
Policy statements supporting the importance of the working coastline,
including the encouragement of public and private investment in port
facilities, will be included to bolster the Municipality’s efforts in maintaining
its existing facilities and attracting new investment to support the
community’s vision for new facilities.
Chapter 7.
Integrated Mobility 99
7.2. OBJECTIVES
Develop and maintain an integrated mobility system for all
ages and abilities, where community members have
numerous transportation opportunities such as cycling,
walking, high quality public transit for urban, suburban, and
rural communities.
Enhance the priority of public transit, and integrate transit
expansions with land use planning and development,
particularly within the Service Area Boundary.
Collaborate with rail providers, the Port of Sydney, the
Sydney Airport Authority, to facilitate the flow of goods and
services within and beyond the municipality, and to
promote economic development.
Recognize the importance of the Port to the regional
economy and to work with the Port of Sydney to ensure
continued marine traffic and marine-related uses at the Port
Limit further expansion of the road network and undertake
future road infrastructure investments strategically, to
support a system that enables sustainable, equitable and
multi-modal transportation options
Acknowledge and appreciate that transportation needs vary
across CBRM’s urban and rural communities, and that there
is no one sized fit all solution to mobility.
7.3. PUBLIC ROADS
CBRM has an expansive regional road network that comprises more than
465km of roads which are owned and maintained by the municipality.
These roads range from local streets to major arterials. The province of
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Integrated Mobility 100
Nova Scotia also owns and maintains another approximate 1,370 km of
roads with the CBRM governance area which range from local roads to
major freeways. These road networks accommodate many types of users,
but is dominated primarily by motor vehicles that range from private autos
to transit buses to heavy trucks. The road network is also the backbone of
the active transportation network, with complimentary facilities such as
sidewalks and bicycle lanes serving as the primary means of transportation
for pedestrians and bicyclists.
CBRM owned assets such as roads, sidewalks, and bicycle lanes are
maintained by the CBRM’s Public Works. The department provides
maintenance and snow clearing services along important corridors. It is
anticipated that this role will continue for the duration of this plan. It is
important that in the interests of focusing limited resources, that CBRM
endeavor to limit the expansion of the road network and instead, focus
additional investment in road infrastructure on strategic upgrades that
support the municipality’s mandate of building strong and resilient
communities. To these ends, it is recommended that Regional Council
prohibit the development of new public roads outside the Service Area
Boundary, considering only limited and strategic expansion within the
boundary for the duration of this plan.
7.3.1. Public Road Policies
M-1 Council shall encourage a road network that is connected to a
street grid in the Regional Centre and Local Centres through
the Subdivision By-law.
M-2 Council shall aim to connect dead-end streets to improve the
porosity of the road network. When a road extension is not
an option, Council shall consider introducing a pedestrian
connection through the subdivision by-law.
M-3 Council shall, through standards within the Subdivision By-
law, limit the construction of new cul-de-sacs and dead end
streets within the Service Area Boundary.
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7.3.2. Road Infrastructure Policies
M-4 Council shall maintain the current street hierarchy in the
Municipality, as identified by the Transportation Schedule
(Schedule D) to meet the municipality’s transportation needs:
M-5 Council shall leverage funding from the Government of Nova
Scotia and the Government of Canada to maintain roadways
that are under provincial or federal jurisdiction.
M-6 Council shall establish short, medium and long-term priorities
for roadway improvements, and assess all priority candidate
projects through a multimodal lens.
M-7 Council may create standards for landscaping along Arterial
and Collector Streets through the use of street trees, curb
cuts, burying overhead utilities, street lighting, as well as
sidewalks, bike lanes, and medians.
M-8 Council will develop evaluation criteria for identifying
locations and interventions for traffic calming and pedestrian
control.
M-9 Council will develop a policy to manage the roadway assets
so that upgrades to the road network correspond with the
overall infrastructure investment plans and support
multimodal improvements.
M-10 Council will develop an Access Management Policy to provide
a framework for the control of access to CBRM Public Roads.
The Access Management Policy will allow for reasonable
access to adjacent properties while ensuring safe and
efficient functioning of the roadways.
M-11 Council will consider at a minimum the following when
evaluating development proposals:
1. Ability of the street hierarchy to accommodate
changes in transportation behaviour
2. Capacity of adjacent streets to support increased
traffic
3. Appropriate numbers of vehicle access points, with a
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point to increase the number of shared access
driveways
4. Proximity to efficient transit operations, including
transit routes and stops, where infrastructure such as
benches or shelters should be present
5. Presence and role of sidewalks in connecting people,
developments and neighbourhoods
M-12 Council will ensure that developers compensate for costs of
off-site transportation improvements that become necessary
in order to satisfy the infrastructure needs created by a
development proposal.
M-13 Council will introduce wayfinding signage for all forms of
transportation through the creation of a wayfinding plan.
M-14 Council will develop a Municipal Design Guidelines to provide
uniform standards for the construction of infrastructure.
Municipal Design Guidelines will establish minimum design
and construction standards for municipal services and shall
have standards for such items including but not limited to as
public street, piped infrastructure, street trees, utilities, street
lighting, and sidewalks.
7.4. PRIVATE ROADS
A private road is any access or right-of entry not owned by the
Municipality, the Province of Nova Scotia, or the Federal government. This
also includes associated infrastructure including beyond travel lanes, such
as curbs, sidewalks, gutters, bridges, culverts and retaining walls that are
associated with private roads.
7.4.1. Private Road Policies
M-15 Developers of new private roads shall be responsible for their
construction and the establishment of a Road Association,
which must be registered on title, for on-going maintenance
of the private road.
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M-16 Owners of new private roads shall be responsible for clearing
snow and ice during the winter months, or during any
snowfall of freeze period.
M-17 Council shall, through the Subdivision By-law, prohibit private
streets inside the Service Area Boundary.
M-18 Solid waste collection shall be the responsibility of the Road
Association unless the provisions of the Solid Waste Resource
Management By-law can be met.
7.5. DATA COLLECTION
An important component of the successful plan implementation is
monitoring its progress. A robust approach to data collection is required to
facilitate ongoing monitoring. In addition to the use of big data, there is an
opportunity to coordinate and use transportation information that is
already collected by municipal departments and other organizations to
inform a robust monitoring approach.
7.5.1. Data Collection Policies
M-19 Council shall initiate regular traffic count surveys, and
prioritize the public streets to be surveyed based on the road
hierarchy (Schedule D).
M-20 Consider pursuing the use of big data to understand the
transportation habits and needs of CBRM residents.
M-21 Council will consider initiating an annual ridership count and
transit survey to understand user requirements and
impressions.
7.6. COMPLETE COMMUNITIES
Complete communities, like those described in the previous sections of
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Integrated Mobility 104
this document, provide a place for residents to live, work, shop, learn and
play without always depending on a private vehicle. Where complete
communities are oriented around transit routes or terminals, they become
transit oriented development. Fewer people need to own vehicles because
they are within easy access of high-quality transit that can get them safely
and comfortably to their destinations. When more people use transit, in
the long term, CBRM can spend less on parking facilities, road expansions,
and other municipal utilities.
Thoughtfully clustering development in strategic locations within the
Service Area Boundary will support efficient use of infrastructure, reduce
land consumption and foster vibrant, community-oriented
neighbourhoods.
7.6.1. Transit Oriented Development Policies
M-22 Council will direct residential growth to Downtown Sydney
and to the Regional Centre, enabling the creation of compact
communities where residents can access amenities, shops,
services, housing and employment with population densities
which can continue to support quality transit service.
M-23 Council will direct the clustering suburban development to
foster the creation of complete communities that provide
connections to Downtown Sydney, Local Centres, and Mixed-
Use Centres and may also support transit connections.
M-24 Rural development will be clustered in order to conserve
natural areas, and create opportunities for walking, cycling,
and other forms of active transportation outside of urban
areas
M-25 Council shall strategically locate institutions and sources of
employment near Corridors. Direct employment growth to
Mixed-Use Centres, Commercial Centres, and Local Centres
where land uses are complementary and integrated.
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7.7. ACTIVE TRANSPORTATION
Making it convenient for more residents to choose walking and bicycling is
key to building a fair, equitable, and accessible transportation network.
Walking is part of almost all trips, most notably the first and final parts of
transit trips. Walking and bicycling can be fast and convenient ways to
access destinations and transit within the region as well.
Acknowledging that the unique character of communities in CBRM, in
2008, the Region began the implementation of the CBRM Active
Transportation Plan, with the goal of encouraging walking and bicycling by
building complete and connected networks that respond to the needs of
urban, suburban and rural communities, for all ages and abilities. In 2022,
CBRM approved a new Active Transportation Plan.
7.7.1. Active Transportation Policies
M-26 Council will develop a Multimodal Level of Service Guideline
to guide and inform the decision making during the planning,
design, and operations of streets and intersections.
M-27 Council shall ensure active transportation infrastructure is
designed with universal design principles.
M-28 Council shall recognize active transportation as a core
component of the municipality’s transportation infrastructure
and consider funding in alignment with recommendations in
the CBRM Active Transportation Plan.
M-29 Council will support the implementation and maintenance of
the CBRM Active Transportation network as described in the
Active Transportation Plan.
M-30 Council will develop and maintain both on-street and off-
street infrastructure for non-motorized traffic throughout the
municipality including: sidewalks, trails, on-street bicycle
lanes.
M-31 Council will consider the incorporation of improvements to
active transportation into all transportation infrastructure
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projects.
M-32 Council will provide bicycle parking throughout the Regional
Centre, Local Centres, Commercial Centres, and Mixed-Use
Centres. Consideration will be given for requiring bike
parking at all new developments.
M-33 Council shall prioritize Active Transportation investment to
ensure connections between sales and service areas,
residential neighbourhoods, and parks and natural areas.
Council will accomplish this by reviewing its Active
Transportation Plan every ten years.
M-34 Council will encourage the inclusion of facilities such as
change rooms and showers in municipal buildings support
active transportation commuting.
M-35 Council will identify a priority winter pedestrian and cycling
network, and ensure effective winter sidewalk, bike lane, and
trail maintenance in all seasons.
M-36 Council will lobby the province to develop strong policy
direction on the introduction of sidewalk and Active
Transportation networks on Provincial Roads.
M-37 Improve pedestrian infrastructure with a focus on:
1. Street furniture
2. Access for all ages and abilities
3. Safe pedestrian crossings
7.8. PUBLIC TRANSIT
The CBRM is serviced by a publicly owned transit service that operates as a
division of the Department of Engineering and Public Works. With an aging
population, seniors use the service as at a much higher rate than the total
population. The CBRM is also home to a growing number of post-
secondary students, who will need reliable transit service when accessing
the NSCC Marconi Campus, or the CBU Campus, either they live within the
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Regional Centre, Glace Bay, or on the north side. The public transit system
should strive to offer cost-effective and sustainable alternatives to driving,
with routes connecting the Regional Centre to Local Centres and
Employment Centres. Community members have called for increased
transit service between Downtown Sydney and Glace Bay, as well as
between other communities throughout the CBRM. Public transit should
play a crucial role in making the CBRM more liveable and affordable.
7.8.1. Public Transit Policies
M-38 Council shall, promote public transit as a central part of the
CBRM transit system
M-39 Council shall ensure that transit funding levels enable the
transit system to be safe, efficient, affordable and accessible,
while linking residents to areas of employment, residential,
recreation, and sales and service areas
M-40 Council shall encourage residential and employment growth
along corridors, in Downtown Sydney, the Regional Centre,
Urban Centres, and Corridors
M-41 Council shall prioritize diverse, accessible, and equitable
connections between the Regional Centre with other Local
Centres (North Sydney, CBU and Glace Bay)
M-42 Council shall explore prioritizing bus service between
Business Parks, the Regional Centre, and Local Centres
M-43 Council shall investigate the potential of ridesharing, park
and rides, and other Transportation Demand Management
Infrastructure
M-44 Council shall collaborate with the Government of Nova Scotia
and the Government of Canada to raise public funding for
transit services and operations
M-45 Council shall require provision of transit shelters along
Corridors and transit routes
M-46 Council shall work in partnership with the Province of Nova
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Integrated Mobility 108
Scotia to manage traffic in Corridors and along transit routes,
to ensure that public transit is prioritized over vehicular
traffic
M-47 Council shall adopt a Transit Service Policy which will provide
goals and objectives to support service recommendations
that maximize transit growth opportunities while maintaining
cost effectiveness.
7.9. ACCESSIBILITY
An accessible urban, suburban, and rural environment helps create a
welcome barrier-free and safe journeys for everyone. Providing a level of
accessibility to all users, despite physical/cognitive disabilities or
limitations, is an important consideration for mobility in the region, and
becomes increasingly important as the population ages, as the amount of
people with mobility limitations also continue to increase.
Recognizing the high importance of accessibility in creating a fair and
equitable province for all Nova Scotians, the provincial government has
recently strengthened accessibility requirements.
The Act Representing Accessibility in Nova Scotia (Bill 59) was given Royal
Assent on April 28, 2017. The goal of this Act is to improve accessibility by
preventing and removing barriers faced by people with disabilities. As the
elements of this important directive are released, they may provide further
direction to complement, clarify, and focus the policies below.
7.9.1. Accessibility Policies
M-48 Council will develop and implement an Accessibility Plan for
mobility in the region with respect to the built environment,
transit, transportation infrastructure and the delivery of
goods and services.
M-48 Council will identify which transportation corridors are
prioritized for which users, and ensure that in corridors
where vulnerable users, such as pedestrians, and cyclists are
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prioritized, significant investment is made to ensure a high
level of accessibility is maintained.
M-50 Council will ensure accessible design in all elements of the
transportation system in order to accommodate the needs of
persons with disabilities.
M-51 Council will direct staff to support accessibility objectives by
building the connectivity of sidewalk, crosswalks, and transit
stops.
M-52 Mandate that pedestrian, active transportation, and transit
infrastructure is designed for users of all ages and abilities,
including wheelchair uses, strollers
M-53 Ensure that lighted crosswalks consider varying walking
speeds among pedestrians
M-54 Council will support the expansion of an accessible transit
service according to demand, and to consider integration
with the conventional Cape Breton Transit network, where
possible, to increase the efficiency of the network and
mobility for residents.
M-55 Council will undertake an analysis to better understand the
accessibility of the bus stops in the conventional transit
network, and prioritize investment to ensure stops are
accessible for transit users with varying levels of mobility.
M-56 Council will ensure that the secondary usage of
transportation infrastructure and right of ways (for uses such
as street vendors, street furniture, or sidewalk cafes) do not
impede the usability of these routes for persons with
disabilities
M-57 Council will ensure that developers meet the applicable
Provincial and Municipal accessibility requirements within
new development projects through the requirements of
Building Code Requirements
M-58 Council will direct development of new construction
mitigation guidelines to require pedestrian management,
including considerations for people with visual and mobility
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impairments, to provide safe and clear passage around
construction sites.
M-59 Council will direct staff to prioritize the repair and
maintenance of sidewalks to keep them clear and safe during
inclement weather and in response to regular wear and tear
(this is a part of regular municipal practice).
M-60 Council will direct staff to evaluate the benefits of various
wayfinding cues to ensure the transportation network is
welcoming, safe and accessible. This may include, but not be
limited to, Tactile Walking Surface Indicators͙, and curb ramps.
7.10. MANAGING PARKING
Each community within the CBRM has specific parking needs. The CBRM
requires a parking strategy to identify these needs and then adjust parking
services accordingly. Downtown Sydney in particular, has over 30% of its
land dedicated to parking, which may be land that could be used more
effectively in other ways. Parking remains a crucial element of the CBRM’s
transportation infrastructure, and it can be managed in ways that balance
meeting the needs of vehicle users, while also encouraging a diversity of
land uses and encouraging the use of public transportation.
7.10.1. Parking Policies
M-61 Encourage Transportation Demand Management (TDM)
programs that reduce the demand for parking.
M-62 Require that parking facilities have accessible parking.
M-63 Eliminate minimum parking requirements for uses within
across the Municipality, but ensure parking standards allow
for safety and design features to encourage safe access and
barrier free design.
M-64 Review parking rates annually and the demand for short
term parking in Downtown Sydney, as well as the Local
Centres, to encourage the use of public transportation,
carpooling, while providing a parking environment that
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allows business to thrive in these designations
M-65 Implement controls that limit long term on-street parking so
as not to impede regular street maintenance and cleaning
7.11. MOVEMENT OF GOODS
The efficient movement of goods is central to a connected municipality
where the transportation sector can continue to grow and provide
employment opportunities and contribute to the economic growth of the
CBRM. The infrastructure that facilitates the movement of goods interfaces
with every aspect of residents lives, from tourism, to impacting
greenhouse gas emissions. Retaining railway access, maintaining the
Marine Atlantic Terminal, and supporting future transport sites such as
Novaporte are key to strengthening these systems.
7.11.1. Goods Movement Policies
M-66 Council shall develop with the Engineering and Public Works
Department a system of truck routes aligned with the road
classification system, as identified in the Transportation
Schedule (Schedule D)
M-67 Council shall collaborate with the Province of Nova Scotia to
develop an efficient and integrated network to facilitate the
transportation of goods, including truck, marine, and air
travel
M-68 Council shall encourage employment uses, including
industrial and sales and service uses that generate heavy
truck traffic, near areas with access to the port and major
highways while maintaining smaller scale sales and service
uses in appropriate nodes in the Generalized Future Land
Use Map and Land Use By-law.
M-69 Council shall recognize the role of the Marine Atlantic
Terminal in North Sydney as one of the primary entrances
to Nova Scotia and to the Municipality, and a significant
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component of a tourist’s experience.
M-70 Through provisions in the Land Use By-Law, Designate the
Sydport, Novaport, and Logistics Park sites for:
Marinate, road, and rail related transportation
terminus uses;
Marine industrial uses and any industrial use
providing service and fabrical support to offshore
businesses;
General manufacturing
General industrial activities (e.g. wholesale,
warehousing, general transport/contracting, fuel
oil bulk storage; and
Regional utility service facilities.
M-71 Advocate to the Province to ensure that CBRM retains a rail
access to mainland Nova Scotia
7.12. ASSET MANAGEMENT
The CBRM provides a wide range of services to the community that require
the ownership and responsible operation, maintenance, and rehabilitation
of physical assets including land, buildings, equipment, transportation,
drainage, sewer, and water infrastructure. Asset Management is an
integrated approach, involving all CBRM departments, to delivery value to
the community through the effective management of existing and new
infrastructure assets. The intent is to maximize benefits, reduce risk, and
provide satisfactory levels of service to the community in a sustainable
manner. Good asset management practices are fundamental to achieving
sustainable and resilient communities.
M-72 Council shall adopt an Asset Management Policy which will
focus its infrastructure efforts on managing risk, addressing
priorities, and costs in regards to short and long-term
infrastructure needs across the CBRM.
Chapter 8.
Economic Development 113
Chapter 8.
Economic
Development
Chapter 8.
Economic Development 114
8.1. PURPOSE
The CBRM is the economic centre of Cape Breton Island, and the second
largest urban area in Nova Scotia. Once an industrial and manufacturing
powerhouse, the municipality now has one of the lowest concentrations of
manufacturing employment among the country’s urban centres.
Accompanying this decline in the sector has been a decline in population
over the past 20 year period, raising the alarm for the need to rethink and
reprioritize economic development efforts. Along with economic and
demographic challenges, the CBRM has opportunities on which it can
leverage. There is an active economic development sector, with a network
of organizations and institutions working to spur innovation in the
municipality.
There is further potential in specific industries. Cape Breton is a world-
renowned tourism destination, with the CBRM being a key gateway for
many national and international tourists. The CBRM can support capacity
building in the biotechnology sectors, ocean research, aquaculture, the
arts, and the sectors related to the production, distribution, and sale of
cannabis. Still, the service sectors of education and healthcare are in need
of workers to replace a retiring workforce. The municipality will need to
focus its efforts on growing its workforce by attracting and retaining
newcomers, post-secondary graduates (particularly international
students), and young workers who may otherwise be tempted to move
west. This chapter implements key elements of the Economic
Development Strategy and provides the policy guidance needed to link
development and economic decision making.
8.2. OBJECTIVES
Ensure the CBRM has the necessary tools, processes and
resources to attract and retain investment.
Grow the economic potential of CBRM’s strategic
advantages.
Chapter 8.
Economic Development 115
Foster opportunities in tourism, marine development,
culture, entrepreneurship, post-secondary education, and as
Cape Breton’s urban hub.
Integrate sustainable land management practices into the
development process to ensure long term care and
stewardship of the CBRM’s natural environment.
Align with the Province’s approach for coastal and riparian
development, with special attention to preserving public
access to coastal areas while protecting the coastline from
uses that may exacerbate coastal erosion.
Address and encourage food security throughout the CBRM
through establishing a collaborative network of stakeholder
groups and experts.
Collaborate with neighbouring municipalities on climate
adaptation and mitigation measures and programs.
8.3. ECONOMIC DEVELOPMENT
CAPACITY
Municipal economic development is increasingly competitive, and it
is vital that the CBRM continue to bolster its economic development
capacity with the goal of attracting and retaining investment. CBRM
is home to numerous organizations, groups, and institutions that are
working to develop and diversify its local economy. The Municipality
should be capitalizing on existing economic development efforts and
investing in economic growth. CBRM has the resources to build its
own capacity in the research, clean energy, tourism, and technology
sectors. The municipality has a sufficient supply of land that can
accommodate a range of initiatives that can positively impact
economic growth.
Chapter 8.
Economic Development 116
8.3.1. Economic Development Capacity Policies
ED-1 Council shall, in partnership with the Cape Breton Partnership,
approve the Economic Development Strategic Plan as a five year
road map for economic development
ED-2 Council shall explore appropriate funding and capacity building
for execution of the economic development strategy and
associated implementation plans.
ED-3 Council shall evaluate the implementation of Commerical
Development District Improvement By-law in accordance with
the Municipal Government Act. This By-law allows for the
phasing in of commercial tax increases in all eight historic
downtown cores (Sydney, Glace Bay, North Sydney, Sydney
Mines, New Waterford, Dominion, Whitney Pier and Louisbourg)
as well as the three business parks (Sydport, Northside and a
portion of Harbourside) as shown on the attached maps.
8.4. POPULATION GROWTH
Population growth is vital to the future socio-economic wellbeing of the
CBRM. Due to its aging population, outmigration, and a rapid increase in
retirees, the municipality needs much more than a net increase in
residents. Even to retain the current size of its workforce, the CBRM needs
to grow by 12% by 2040. To see a meaningful increase in its workforce, the
CBRM must grow by 24,800 new residents over the next 20 years. This
population growth is necessary in order to maintain the tax base to fund
services, specifically the healthcare and education sectors, and to provide
a consumer base for a growing economy. The CBRM must double down on
efforts to attract and retain newcomers, international students, as well as
retain young workers.
Chapter 8.
Economic Development 117
8.4.1. Population Growth Policies
ED-4 Council shall collaborate with the Cape Breton Partnership and
Cape Breton Local Immigration Program to develop an
Immigration Action Plan to promote the attraction, integration
and retention of immigrants to CBRM.
ED-5 Council shall, in partnership with the Cape Breton Partnership,
promote the Atlantic Immigration Program to businesses as a
key tool in population and workforce attraction to CBRM.
8.5. BUSINESS PARKS
The business parks at Open Hearth and Northside as well as the Airport
are opportunities to focus land uses that involve light manufacturing and
transportation. These land uses include well paying jobs, and have the
potential to attract complementary businesses, and should be easily
expanded to satisfy the needs of tenants and employers. The J.A. McCurdy
Sydney Airport is the second largest and busiest in Nova Scotia, with direct
access to both Downtown Sydney and Glace Bay along Nova Scotia
Highway 4 (Sydney Glace Bay Highway), the municipality’s primary corridor.
8.5.1. Business Parks Policies
ED-6 Council shall establish a Business Park designation on the
Generalized Future Land Use Map and apply it to all existing
business/industrial parks throughout the CBRM, including to
proposed expansion areas. Development standards will be
established through the Land Use By-law to permit an
integrated mix of industrial, sales and service land uses.
ED-7 Council shall work closely with Build Nova Scotia and the owners
of private industrial and business parks, including Sydport, to
ensure that CBRM’s future land use designations and
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Economic Development 118
regulations adequately accommodate future growth and
expansion of these areas.
ED-8 Council shall designate the Regional Centre, Local Centre, and
Mixed Use designations on the Generalized Future Land Use
Map as employment areas.
ED-9 Council shall consider designating lands at and adjacent to the
J.A McCurdy Sydney Airport to allow a broad range of accessory
and service support uses to accommodate further
intensification of these lands.
8.6. PORT AND HARBOURS
The CBRM has port facilities located throughout its harbours, serving
downtowns and local and mixed-use centres. The North Sydney Harbour is
one of the primary travel routes to Newfoundland. As the most eastern
centre in Nova Scotia, its Sydney’s port lands have the capacity to handle
an increase in shipping traffic, as exemplified by the ongoing Novaporte
project. The municipality should cooperate with the private sector and all
levels of government to facilitate these efforts to use the region’s port
systems to bolster economic growth.
8.6.1. Port and Harbours Policies
ED-10 Council shall establish an appropriate land designation to Port
of Sydney and the North Sydney Ferry Terminal.
ED-11 Council shall designate other privately owned ports as Industrial,
including the lands that are planned for the Novaporte project
ED-12 Through the Land Use By-law permit a broad range of marine-
related support and service uses to support the on-going
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Economic Development 119
development of CBRM’s Ports and Harbours, including the Bras
D’Or Channel, Sydney Harbour, Glace Bay Harbour, Port Morien
Harbour, Main-a-Dieu Harbour, Louisbourg Harbour and
Gabarus Harbour.
ED-13 In support of the local fishery industry, Council shall permit
fishery support uses within the Rural lands designation through
the Land Use By-law. Through the Land Use By-law, fishery
support uses may be allowed as secondary uses within the
Serviced Area Boundary through appropriate site plan approval
conditions.
8.7. RURAL CBRM
Rural CBRM contains a mixture of uses, though at a lower intensity. The
municipality contains a significant portfolio of rural lands to support the
tourism, agriculture, and natural resource sectors, while preserving the
region’s unique ecosystem and character. Lands along the Mira River, the
Bras d’Or Lakes, and the coastal areas contain opportunities for tourism.
There are also specific rural centres where land uses can be directed that
can ensure that these areas have employment opportunities, a high
quality of life, and are part of what makes the CBRM an attractive place to
live, work and play.
8.7.1. Rural CBRM Policies
ED-14 Allow for rural economic development by permitting a mix of
sales and service uses along with residential uses within the
Rural Designations on the Generalized Future Land Use Map.
ED-15 Through the Land Use By-law, permit a mix of sales and service
uses, agricultural, industrial land uses that are sensitive to the
rural context in areas outside of the Service Area Boundaries.
Chapter 9.
Indigenous Reconciliation 120
Chapter 9.
Indigenous
Reconciliation
.
Chapter 9.
Indigenous Reconciliation 121
9.1. PURPOSE
Eskasoni and Membertou First Nations are an important part of the Cape
Breton identity. Council has an opportunity to integrate the First Nations
into the decision making framework in a consistent and meaningful way.
The Indigenous Relations chapter sets a framework for long term
collaboration through policy directives that speak to Council’s commitment
to the Peace and Friendship Treaties. Policy related to land
acknowledgement is intended to be progressive, setting the tone for
innovative approaches to collaborative land management including
participation in the addition-to-reserve process.
Chapter 9.
Indigenous Reconciliation 122
9.2. OBJECTIVES
Commit to developing a friendship agreement with
Membertou and Eskasoni First Nations.
Develop and use a consistent and meaningful land
acknowledgement in consultation with Membertou and
Eskasoni First Nation, to be integrated into council and
administrative meetings, as well as community and cultural
events.
Regularly discuss, engage and consult with Membertou and
Eskasoni First Nations on matters of community planning,
economic development, and property development.
Acknowledge the importance of the Peace and Friendship
Treaties, carrying long-standing promises and mutual
obligations relationship to Mi’kmaw people, in the form of
Treaty Day celebrations.
Acknowledging that the Membertou First Nation is a global
leader in Indigenous economic development, and working
closely with the Membertou First Nation on infrastructure,
housing, healthcare, tourism, and environmental initiatives.
Recognize and facilitate the community economic
development and planning work carried out by Membertou
and Eskasoni First Nations.
Support the prosperity and wellbeing of urban Indigenous,
Metis, and Inuit peoples residing within the communities of
CBRM.
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Indigenous Reconciliation 123
9.3. TRUTH AND RECONCILIATION
CBRM acknowledges the past and present impacts that colonialism has
had on Indigenous Peoples, and is committed to making efforts toward
creating a better future. To do this, the CBRM will work to implement the
Truth and Reconciliation Calls to Action into planning decisions, which will
ensure that the municipality’s efforts accurately reflect the needs and
desires of Indigenous Peoples. This will involve protecting the culture of
Eskasoni and Membertou First Nations, as well as the urban Indigenous,
Metis, and Inuit peoples residing within the communities of CBRM, while
also acknowledging and documenting the CBRM’s colonialist history and
the effects it continues to have.
9.3.1. Truth and Reconciliation Policies
IR-1 Council shall, provide education to civil servants on the
history of indigenous peoples, including the history and
legacy of residential schools, the United Nations Declaration
on the Rights of Indigenous Peoples, Treaties and Rights,
Indigenous Law, and Indigenous-Crown relations.
IR-2 Council shall, adopt and implement the United Nations
Declaration on the Rights of Indigenous Peoples as a
framework for reconciliation.
IR-3 Council shall explore opportunities to partner with
Membertou and Eskasoni to include indigenous art and
culture within public spaces across CBRM.
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Indigenous Reconciliation 124
9.4. AGREEMENTS AND LAND
ACKNOWLEDGEMENTS
CBRM is committed to honouring the agreements that have been made
between settlers and the Mi’kmaq people, and to continue to negotiate
agreements and partnerships with the Eskasoni and Membertou First
Nations. In doing this, the municipality aims to defend the rights of the
First Nations, while also supporting new opportunities for the prosperity of
Indigenous Peoples within CBRM.
9.4.1. Agreements and Land Acknowledgements
Policies
IR-4 Council shall explore developing Friendship Agreements with
Membertou First Nation and Eskasoni First Nation to
establish a framework for inclusion and partnership.
IR-5 Council acknowledges and accepts the 1779 Peace of
Friendship Treaties and supports Eskasoni and Membertou in
their future pursuit of modern treaties or land claims.
IR-6 Council shall develop a land acknowledgement policy and
process for Council meetings in consultation with
representatives from Eskasoni and Membertou.
9.5. ADDITION TO RESERVE LANDS
CBRM recognizes the indigenous right to self-determination and self-
government, which often involves land exchanges, either through market
sale or land claims between a Band and the Crown. This exchange of land
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Indigenous Reconciliation 125
is a vital step toward decolonization. Because of this, this Municipal
Planning Strategy includes policy which encourages the development of
urban reserves in CBRM, and which makes efforts to enhance the Addition-
to-Reserve process. By supporting and encouraging the growth and
prosperity Eskasoni and Membertou First Nations through land
acquisition, CBRM is committed to creating a better future for Indigenous
Peoples in the municipality. CBRM continues to be a strong partner in
support of regional economic development and will continue to work with
Eskasoni and Membertou on partnerships and service agreements.
9.5.1. Addition to Reserve Lands Policies
IR-7 Council shall collaborate and support Eskasoni and
Membertou in their pursuit of expanding their reserve lands
for lands within CBRM jurisdiction.
IR-8 Council shall continue to provide essential services to
Eskasoni and Membertou, including water, sanitary, storm,
police, transit, and other municipal services via service
agreements. The service agreements shall recover lost
revenue from property tax in lieu of service provisions and
seek future land use compability for the immediate area.
IR-9 Council shall support and identify opportunities to prioritize
municipal involvement within the Additions-to-Reserve
process.
IR-10 Council shall provide training opportunities to civil servants
on the additions-to-reserve process.
IR-11 Council shall add reserve lands, post the addition-to-reserve
process from both the Generalized Future Land Use Map and
Land Use By-law.
0 126
Chapter 10.
Arts, Culture, and
Equity
Chapter 10.
Arts, Culture, and Equity 127
10.1. PURPOSE
The Municipality acknowledges the centrality of arts, culture and heritage
to the economic development, quality of life, and to the community’s
vibrancy. The CBRM is home to a dynamic and world-renowned arts
community that will continue to play a vital role in the municipality’s
vibrancy and prosperity. Cape Breton is known as an incubator for arts
and talent, and world class performers and artists originate from CBRM.
The creative sector directly and indirectly influences industries in tourism,
1% of CBRM residents were employed in Information and cultural
industries in 2021, with another 2% employed in Arts, entertainment and
recreation. The heritage and character of neighbourhoods throughout the
CBRM’s communities were informed by the region’s industrial history. The
Municipality also acknowledges that heritage goes beyond the built
environment, and encompasses Mi’kmaq knowledge and practices.
Additionally, Council recognizes the important role Local Government has
in creating belonging and a sense of place. Council would like to enshrine
principles of social equity in policy to ensure CBRM is a more equitable and
just municipality.
10.2. OBJECTIVES
Continue to support the municipality as a world-renowned
creative centre for arts and culture, where creativity and
diversity thrive, in accessible formats and venues
Increase the frequency, amount, and accessibility to and
participation in arts and cultural events and activities
Continue to work with the Cape Breton Partnership, the
Provincial and Federal levels of government, and
stakeholders such as the Cape Breton Centre for Draft and
Design, the Cape Breton Music Industry Cooperative, and
Celtic Colours to ensure that the creative sector is
sustainable and resilient
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Arts, Culture, and Equity 128
Work with the arts community to maintain appropriate arts
and culture facilities and organizations in the municipality.
Integrate art into public spaces, events, festivals, and
everyday activities.
Ensure civic policies, regulations, spaces, and programming
are reflective of all communities.
10.3. GENERAL POLICIES
AC-1 Council recognizes the contribution and importances of arts
and culture in contributing to the vibrancy and success of
CBRM.
AC-2 Council shall consider creating a municipal committee
dedicated to Community Arts and Culture to support the
delivery of arts and culture, funding, inclusion, and
programming.
AC-3 Council shall encourage the concentration of arts and cultural
programming, facilities, and organizations within the Regional
Centre, Local Centre and Mixed Use Centre designations.
AC-4 Council shall encourage access to arts and cultural facilities
through active transportation and barrier-free access through
the implementation of the Active Transportation and
Accessibility Plans.
AC-5 Council shall encourage the inclusion of public art in
prominent community spaces across CBRM.
10.4. SOCIAL EQUITY
Council wishes to improve relationship building within the community
including the many community and stakeholder groups dedicated to social
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Arts, Culture, and Equity 129
diversity and inclusion. Policy below seeks for a better quality of life for all
residents of CBRM. It is the intention of Council to make decisions that
benefit the greatest number of residents and support an improved quality
of life for marginalized groups. Policies to address and frame Council’s role
in critical social equity issues like health and wellness services, poverty
eradication, social inclusion, corporate diversity, and accessibility.
AC-6 Council shall support Council and staff of CBRM undertaking
diversity and inclusion training.
AC-7 Council shall support the work related to enhancing diversity
and inclusion throughout the municipality.
AC-8 Council shall ensure universal access to municipal services,
ensuring that there is no discrimination on the basis of race,
ethnicity, immigration status, social class, ability, age, gender,
and sexual orientation.
AC-9 Council shall explore opportunities to use a Gender-based
Analysis (GBA+) toolkit to assess the gendered impacts of
municipal policy and infrastructure design.
Chapter 11.
Administration and Implementation 130
Chapter 11.
Administration and
Implementation
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Chapter 11.
Administration and Implementation 131
11.1. PURPOSE
The CBRM Forward Directions and Vision set a clear course for the
Municipality over the next 25 years. The Municipal Planning Strategy is the
policy document that will guide decision making for growth, development,
and investment into the various urban, suburban, and rural communities
that make up CBRM. To carry this direction forward, partnerships are
required with Indigenous governments, neighbourhoods, the private
sector, the nonprofit sector, and other communities and levels of
government.
The Implementation Chapter establishes the regulatory basis for the
Municipal Planning Strategy, sets the stage for a neighbourhood based
planning program to implement a regional vision to define the various
aspects of the monitoring program. The Municipal Planning Strategy will
be a living document that is updated and reviewed on a regular basis, with
measures to track success. Through the CBRM Forward process, the
community and Council have voiced the desire that a strong commitment
be made to revive land use planning through a well-defined
implementation and monitoring program that upholds the CBRM Forward
vision, yet responds to the changing needs of the community. Ongoing
community involvement is central to the success of this monitoring
program.
11.2. OBJECTIVES
Ensure planning, regulation, and decision-making is aligned
with the Municipal Planning Strategy policies.
Provide guidance on future investment strategies for the
Municipality.
Ensure that Council and Municipal Staff understand the
financial implications of development proposals that impact
the implementation of the Municipal Planning Strategy.
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Administration and Implementation 132
Provide a framework for Secondary Planning, provide
guidance for growth, change and continued public
engagement
Set out a monitoring program to measure the success of the
Municipal Planning Strategy on a regular basis, ensuring the
Municipal Planning Strategy remains relevant to changing
demographic, economic and social trends.
11.3. IMPLEMENTATION
The CBRM takes a regional approach to land use planning, through its
responsibility as Regional Municipality, covering many former
communities. Land use planning in CBRM is wholly administered by CBRM
Council, which regulates land use through a Land Use By-law, Subdivision
By-law and building inspection.
Through this document, Council has established goals, objectives and
policies for managing land use and development. This Strategy and
subsequent regulations are both enabled and compliant with standards
enabled through the Municipal Government Act.
11.3.1. Policies
The policies within this strategy represent Councils intention for the use
and management of land and development across CBRM. The policies are
denoted in each plan through bolded and numbered text, such as: M-X the
letter corresponds to the chapter title and policy number is presented in
sequential order in each chapter. The policies are introduced by a
preamble narrative which provides context (note: not policy), which has
used to frame the policies and may help direct the interpretation of
policies.
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Administration and Implementation 133
11.3.2. Effective Date and Repeal
A-1 This Municipal Planning Strategy shall come into effect on the
date that a notice is published by the municipality, informing
the public that the planning documents are in effect.
A-1a Amendments to the Municipal Planning Strategy and
Subdivision By-law will follow CBRM's Public Participation and
Engagement Programs Policy. In accordance with S210 of the
MGA, for amendments to the Land Use By-law, the public
participation program is at the discretion of Council. Public
participation programs for Land Use By-law amendments will
be determined by Council based on the complexity of the
amendment.
A-2 During a meeting held on Tuesday, July 20th, 2023, the Council
of the CBRM repealed:
• Cape Breton Regional Municipality Municipal Planning
Strategy (originally adopted 2004)
• Cape Breton Regional Municipality Land Use By-law
(originally adopted 2004)
• North End Sydney Secondary Municipal Planning
Strategy (originally adopted 2006)
• North End Sydney Secondary Land Use By-law
(originally adopted 2006)
• Cape Breton Regional Regional Subdivision By-law
(originally adopted 1998)
11.3.3. Regional Cooperation
The creation of this planning document was done in collaboration with all
municipalities on Cape Breton Island, who were partners through the
process. The CBRM project team collaborated with the Eastern District
Planning Commission to discuss areas of alignment between planning
documents, to find consistency where feasible.
As such, as CBRM administers and implements these planning documents,
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Administration and Implementation 134
the spirit of collaboration shall continue and are enabled through the
policies below.
A-3 Council shall solicit comments from abutting municipalities
when adopting or replacing a Municipal Planning Strategy
and when considering amendments to the Municipal
Planning Strategy that would affect lands that share a
common boundary with CBRM in accordance with CBRM’s
Public Participation and Engagement Programs Policy.
A-4 Council shall solicit comments from Membertou and Eskasoni
when adopting or replacing a Municipal Planning Strategy
and when considering amendments to the Municipal
Planning Strategy that would affect lands that share a
common boundary with CBRM in accordance with CBRM’s
Public Participation and Engagement Programs Policy.
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Administration and Implementation 135
11.3.4. Regulations
This Municipal Planning Strategy is implemented via regulations, primarily
through the Land Use By-law and Subdivision By-law. The Land Use By-law
establishes zones and standards to regulate land use and development. It
also establishes conditions for development to be regulated through a
Development Agreement or Site Plan Approval. The Subdivision By-law
provides the requirements and processes for subdividing land, creating
streets and setting aside lands for public purposes.
A-5 Council shall adopt a Land Use By-law and Subdivision By-law
which are consistent with and implement the policies of the
Municipal Planning Strategy.
A-6 Council shall appoint Development Officer(s) to administer
the Land Use By-law and Subdivision By-law, including issuing
or denying permits.
11.3.5. Variances
In some instances, contextual situations may make it difficult for
developments to wholly comply with the regulations and standards
provided in the Land Use By-law. The Municipal Government Act delegated
authority to Development Officers to grant reasonable variances from the
requirements of the by-law to assist with alleviating potential hardships. In
granting a variance, the Development Officer shall ensure the proposal
meets the intention of the policies established in the Municipal Planning
Strategy.
A-7 Council shall permit the Development Officer(s) to vary,
through criteria established in the Land Use By-law :
a. Lot occupancy;
b. Required setbacks;
c. Lot frontage;
d. Lot area; and
e. Building height.
Chapter 11.
Administration and Implementation 136
11.3.6. Secondary Planning
There may be instances where CBRM may explore area specific plans,
known as Secondary Plans. These Plans may be considered in areas where
there are unique conditions that may warrant additional planning
considerations, such as watersheds, heritage areas, and downtowns.
A-8 Council may initiate secondary planning processes in areas
which may warrant detailed planning, including form-based
planning. These Secondary Plans shall should be
incorporated into the Land Use By-law.
11.3.7. Site Plan Approval
Site plan approval is a planning tool enabled by the Municipal Government
Act subject to identified criteria and require public consultations. Under
this planning strategy, site plan approval requirements are established for
requests to provide for greater flexibility for balancing the certain
developments with potential conflicts within regulations of the Land Use
By-law.
A-9 Council shall enable Site Plan Approval as an additional tool
for development approvals within the Land By-law, for uses
in which Council believes there to be public interest in
providing additional standards and flexibility in the
permitting process.
A-10 Council shall establish a notification area of 30m within the
Service Area Boundary and 100m outside of the Service Area
Boundary for a Site Plan Approval application.
A-11 The Land Use By-law shall identify requirements for site plan
approval to provide flexibility that may be required to
accommodate certain land uses, such as:
a) The maximum allowable density of an apartment
building;
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Administration and Implementation 137
b) The location and floor plate of certain non-residential
uses within established residential neighbourhoods;
c) The form and design of buildings and properties to
maintain public access to the Sydney Waterfront.
A-12 Council shall, through the Land Use By-law, establish site plan
approval application requirements.
11.3.8. Development Agreements
Development Agreements are another tool that provide municipalities a
greater level of control over approving and managing development
proposals. These are legal agreements between Council and the property
owner and are registered against the title of property.
A-13 Council shall continue to retain a select list of development
agreements adopted prior to the coming into effect of this
Municipal Planning Strategy. They are to be listed in the Land
Use By-law. Any expansion of the permitted use shall be
permitted by amendment to the development agreement.
11.3.9. Amending the Land Use By-law
A-14 Council may make text or map amendments to the Land Use
By-law, granted the amendment is in keeping with the
intention of policies set forth in this Municipal Planning
Strategy and meets the general criteria set in A-18.
A-15 Council shall may be considered for a zone amendment to an
immediately adjacent zone classification on the Land Use
Zone Map without requiring an amendment to this Strategy,
provided that the intent of all other policies of the Strategy
are satisfied.
A-16 Council shall not amend the Land Use By-law unless Council
is satisfied the proposal:
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Administration and Implementation 138
(a) is consistent with the intent of this Municipal Planning
Strategy;
(b) has regard for:
a. the ability of the Municipality to absorb public
costs related to the proposal
b. variety of land uses within the area
c. the capacity of municipal infrastructure (water,
sewer, stormwater)
d. the creation of excessive traffic hazard or
congestion on the street in as determined by
the Traffic Authority
e. scale of the proposed development in relation
to the surrounding development pattern
f. access to public transit
g. connection to active transportation network
11.4. PLAN AMENDMENTS, REVIEW
AND MONITORING
Amendments to the Municipal Planning Strategy may be brought to
Council to address matters which remain consistent with the vision
established in Chapter 2 and the overall objectives of this Plan. To keep
the Plan relevant to the changing social, demographic and economic
situation of CBRM, this Plan shall be reviewed every five years.
A-18 Council shall initiate a housekeeping amendment process
within two years of the MPS being in effect to address any
issues unforeseen at the time of implementation.
A-19 This Municipal Planning Strategy shall undergo a
comprehensive review every ten years, from the date of
adoption.
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Administration and Implementation 139
A-20 Council may consider topic, neighbourhood, or site-specific
amendments to this Municipal Planning Strategy, as needed,
to respond to applications, priorities and changing
circumstances, these reviews may consider:
a) New policies and directions brought on by Statements
of Provincial Interest, provincial or federal regulations,
or changing priorities that have been brought by
Council.
b) New provincial or federal programs that may benefit
CBRM.
c) Emerging economic, cultural, environmental,
technological, health or social needs.
d) Land Use By-law amendments which necessitate an
amendment to the designations on the Generalized
Future Land Use Map.
e) Opportunities to support affordable housing
developments.
f) The re-uses and development of public or institutional
lands.
g) Any other matter that may be directed by Council.
11.5. EVALUATION
Performance indicators can measure the success of the Municipal Planning
Strategy in achieving its vision and goals. Council should regularly monitor
this Plan against established indicators to ensure it is effective in its scope.
A-21 Council shall develop performance indicators presented as a
means to evaluate certain metrics in an annual score card,
presented to Council.