Portage la Prairie Planning District Development Plan

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2 Portage la Prairie Planning District BY-LAW NO BEING A BY-LAW OF THE PORTAGE LA PRAIRIE PLANNING DISTRICT TO ADOPT A DEVELOPMENT PLAN. WHEREAS Section 40(1) of The Planning Act, Chapter P80, of the Continuing Consolidation of the Statutes of Manitoba, provides for the preparation and adoption of a Development Plan; AND WHEREAS pursuant to the provisions of Section 51 of the Act the Minister of Intergovernmental Affairs approved the Portage la Prairie Planning District Development Plan; AND WHEREAS it is deemed necessary and expedient to adopt a new Development Plan for the Portage la Prairie Planning District; NOW THEREFORE THE DISTRICT BOARD OF THE PORTAGE LA PRAIRIE PLANNING DISTRICT ASSEMBLED ENACTS AS FOLLOWS: 1. THAT the Development Plan attached hereto and marked as Schedule "A" to this by-law is hereby adopted and shall be known as the Portage la Prairie Planning District Development Plan. 2. THAT the District Development Plan shall take force and effect on the date of third reading of this By-Law; 3. In view of the fact THAT the City of Portage la Prairie Development Plan By-Law No and the Rural Municipality of Portage la Prairie Development Plan By- Law No have been repealed. DONE AND PASSED IN PORTAGE LA PRAIRIE BY THE PLANNING DISTRICT BOARD ASSEMBLED THIS 18TH DAY OF APRIL A.D Certified that By-Law No : Received first reading on the 4 th day of May A.D Received second reading on the 18th day of May A.D Received third reading on the 18th day of April A.D [original signed by Jeff Bereza] Chair [original signed by Kinelm Brookes] Development Officer/Building Inspector

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4 Table of ConTenTs 1. MAKING CHOICES WHAT IS THE DEVELOPMENT PLAN? HOW WAS THE PLAN PREPARED? PURPOSE OF THE DEVELOPMENT PLAN BUILDING COMMUNITIES PLANNING VISION PRINCIPLES AND COMMUNITY VALUES IMPLEMENTING THE PLAN ORGANIZATION OF THE PLAN HOW TO READ THE PLAN LAND USE POLICY AREAS Shaping The DiSTricT DISTRICT RESTRUCTURING A REGION OF PARTNERS COLLABORATIVE PLANNING WITH REGION S FIRST NATIONS PORTAGE LA PRAIRIE PLANNING DISTRICT S ECONOMIC HEALTH BUILT URBAN FORM URBAN INFRASTRUCTURE COMMUNITY SERVICES AND FACILITIES HERITAGE RESOURCES CULTURAL ASSETS ImplementatIon TOOLS TO MANAGING GROWTH AND CHANGE Zoning By-Laws Subdivision Regulations Building Regulations Public Works Programs Development Agreements MAKING THINGS HAPPEN Corporate Strategic Plan Secondary Plans Improvement Strategies Concept Plans THE PLAN GUIDES ACTIONS THE FUTURE IS A SHARED RESPONSIBILITY MONITORING PERFORMANCE CITY land use policies UNDERSTANDING CITY URBAN STRUCTURE RESIDENTIAL NEIGHBOURHOODS Existing Neighbourhoods Multi-Family Neighbourhoods Housing INSTITUTIONAL AREAS Institutional Site Development COMMERCIAL LAND USE The Future of Retailing Downtown: Heart of the City Saskatchewan Avenue Commercial Corridor INDUSTRIAL LAND USE AND TRANSPORTATION i

5 4.5.1 Industrial/Business Districts TRANSPORTATION Integrating City Land Use and Transportation Transportation Agenda PUBLIC SPACES The Natural Environment The City Green Spaces Parks and Open Spaces Public Places URBAN EXPANSION Urban Hold Areas LIVESTOCK OPERATIONS URBAN RURAL FRINGE policies Urban-Rural Fringe Areas Rural Residential Agriculture Peony Farm Residential Area Commercial Policy Area RURAL LAnd Use policies INTRODUCTION RURAL OBJECTIVES RURAL DEVELOPMENT GENERAL POLICIES RURAL DEVELOPMENT Agriculture Livestock Operations Rural Non-Farm Residential Development DESIGNATED RURAL SETTLEMENT CENTERS Rural Settlement Centers Managing Development in Oakville Rural Settlement Center and Limited Service Rural Settlement Centers Piped Water & Sewer Services Vehicle Traffic Residential Development Commercial Development Industrial Development Institutional, Recreational and Cultural Development Restricted Development Areas Rural Commercial and Industrial Development POPLAR BLUFF INDUSTRIAL PARK SOUTHPORT AEROSPACE PLANNING AREA SPECIAL RURAL RESOURCE AND INFRASTRUCTURE POLICIES Hazardous Uses Natural Areas and Environmental Conservation Hazard Lands, Flooding and Erosion Water, Reservoir and Shore Land Open Space, Conservation and Heritage Outdoor Recreational Resources Heritage Resources Mineral Resources Transportation Utilities South Basin Lake Manitoba Planning Area ii

6 POLICY MAPS POLICY MAP 1 CITY LAND USE POLICY AREAS POLICY MAP 2 URBAN RURAL FRINGE LAND USE POLICY AREAS POLICY MAP 3 RURAL LAND USE POLICY AREAS POLICY MAP 4 OAKVILLE LAND USE POLICY AREAS RefeRence MAPS REFERENCE MAP 1 REGIONAL SETTING REFERENCE MAP 2 PLANNING DISTRICT BOUNDARIES REFERENCE MAP 3 CITY REGIONS REFERENCE MAP 4 EXISTING CITY AND PROVINCIAL TRANSPORTATION CONNECTIONS REFERENCE MAP 5 CITY GREEN SPACES REFERENCE MAP 6 AGRICULTURAL CAPABILITY REFERENCE MAP 7 SOIL NUTRIENT GROUPINGS REFERENCE MAP 8 NATURAL AREAS REFERENCE MAP 9 MINERAL RESOURCES REFERENCE MAP 10 SOUTH BASIN LAKE MANITOBA SECONDARY PLANNING AREA BOUNDARY iii

7 1. MAKING CHOICES 1.1 WHAT IS THE DEVELOPMENT PLAN? The Development Plan will guide the Portage la Prairie Planning District s growth and development into the 21 st century. The Plan is a strategic document addressing the Portage la Prairie Planning District s physical, economic and social development. The Plan also contains an inter-municipal planning component which addresses the co-ordination of future land use, transportation and development with the Portage la Prairie Planning District s neighbouring jurisdictions including adjoining First Nations. The is comprehensive in scope and will provide direction to the development and implementation of more specific strategies by the Planning District and its Partner s departments and agencies over the next five year planning horizon. 1.2 HOW WAS THE PLAN PREPARED? In the spring of 2003, the Planning District Board initiated the review of the Portage la Prairie Planning District s partners current Development Plans. The Planning District Board adopted a consultative process to engage citizens of the District, business and surrounding First Nations leaders in the development of a Vision for the Planning District. This vision provides the foundation for the District Development Plan and establishes a set of Principles to guide The Planning District in its quest to enhance the quality of life for its citizens. Community issues and planning initiatives were developed and validated with citizen input through a series of eleven Strategic Planning Workshops which focused upon a policy review of existing Municipal Development Plans, changes in the District since the current Development Plans were adopted, finding common ground with regional First Nation Councils, rural development, downtown revitalization, access in the City of Portage la Prairie, smart growth guidelines for the Planning District and preparation of a community planning vision and principles. The workshop findings were supplemented with a youth survey that engaged elementary students in grades 4 and 5 from a number of the Planning District s schools and a high school workshop that engaged students in grades 11 and 12. Opportunities for the District s youth to participate in the planning process assisted the District Board to understand how youth view their communities, what they see as issues and the ideals and principles they feel are important to the future of the Planning District. Input from the focus groups participants and students were instrumental in the preparation of a draft District Planning Strategy. The draft 1-1

8 Planning Strategy was presented at a public open house held in Portage in June of 2004 and at community events through the summer. The draft Planning Strategy was circulated to provincial agencies for comment and presented to various stakeholder groups within the Planning District. The results of the background research and public input provided the Planning District Board with an understanding of community priorities and identified key results that would assist the Planning District and its Partner Municipalities to measure their success in reaching community goals. 1.3 PURPOSE OF THE DEVELOPMENT PLAN Subsection 42(1) and 42(2) of The Planning Act states the requirements of a Development Plan as follows: a) set out the plans and policies of the planning district or municipality respecting its purpose and its physical, social, environmental and economic objectives; b) through maps and statements of objectives, direct sustainable land use and development in the planning district or municipality; c) set out measures for implementing the plan; d) identify those matters of government concern which affect the use and development of land and other resources within the district or the municipality; and e) provide livestock operation policy that guides zoning by-laws dealing with livestock. The Portage la Prairie Planning District responded to the requirements of The Planning Act by providing policies based upon community goals and objectives for the conservation and use of community resources and the orderly and economic development of the Planning District s central city and surrounding rural municipality. The day-to-day decisions of the Planning District Board and Municipal Councils will be based upon these objectives and will endeavour to implement the policies of the Development Plan to promote orderly and economic development within the Planning District. The Development Plan will reduce uncertainty in both the public and private sectors with respect to the future use of land. It promotes development practices, which are compatible with the capacity of the Planning District s land base, infrastructure, community services and environment to sustain human activity. The is a high-level policy document intended to guide decision making over the long term. Even so, course correction will still be needed over the life of the Plan and policy changes may be warranted from time to time. The implementation of this Plan 1-2

9 will take place over time and the use of words such as will or must should not be construed as the Planning District Board s commitment to proceed with all of these undertakings. These may typically occur in a phased manner, subject to budgeting and program availability. 1.4 BUILDING COMMUNITIES The Portage la Prairie Planning District represents a region of both urban and rural communities. The District s location is illustrated in Reference Map 1 Regional Setting. The District is intricately inter-connected economically, socially, environmentally and physically. Its communities have evolved into special places that people care about deeply. It is a wonderful place in which to live, offering a diversity and richness of urban and rural life that nurtures creativity, entrepreneurial spirit and a concern for each other. The boundaries of the Portage la Prairie Planning District are illustrated in Reference Map 2 Planning District Boundaries. The Planning District faces both opportunities and a challenging future where the decisions made today will shape the kind of communities we will live in tomorrow. This Development Plan is about making the right choices and shaping the community s future. The Development Plan is about getting the fundamentals right. It s about having a clear vision for the Portage la Prairie Planning District grounded in durable principles that assure a successful future. Healthy communities are the key to a successful future. They are the communities that will be successful in attracting investment with their high quality of life. To build a competitive, healthy community we have to integrate physical development with environmental, social and economic perspectives in decision-making. Sustainable development means to meet the needs of today without compromising the ability of future residents and generations from meeting their needs. 1.5 PLANNING VISION The vision guiding the is about creating attractive, economically vibrant and safe communities that evoke pride, caring and inclusiveness. This Plan is about the basics of community building. It strives to achieve outcomes that demonstrate interconnection and balance that result in social, economic and environmental benefits. The process of building the Portage la Prairie Planning District into urban and rural communities where everyone shares a sense of commitment to work together to achieve and maintain a quality of life that will attract and retain both people and business will be based upon the following principles and community values. 1-3

10 1.6 PRINCIPLES AND COMMUNITY VALUES Inclusive and Multi-Cultural.1 A caring and inclusive district where safety, diversity, citizen engagement, equal access to basic neighbourhood services is defined by: A caring and safe community that promotes pride, citizen engagement and commitment to community initiatives for positive change A diverse community where all have equal access to high quality community facilities and services.2 A creative district, rich in heritage and unique in its multicultural identity which encourages a vibrant arts and heritage sector, provides opportunities for cultural expression in each community and a distinct rural countryside defined by: Communities where multiculturalism is celebrated and cultural diversity is supported Community values that include and take pride in expressions of a blend of cultures A district defined by supportive relationships between the city, the rural countryside and neighbouring aboriginal communities Opportunity, Health and Inter-Connectiveness.1 A district of diversity and opportunity which provides choice and encourages adaptability defined by: Affordable housing choices to meet the needs of people at all stages of their lives Diverse employment opportunities can adapt to changing economic trends and are poised to capture new business opportunities.2 A healthy and active district that supports recreation and sporting activities, community facilities, accessibility and healthy lifestyles defined by: Affordable recreation opportunities that promote health and wellness 1-4

11 Community facilities that promote and provide opportunities to enjoy a healthy lifestyle to all sectors of the population Accessible green spaces, recreational programs and opportunities that bring people together.3 A district of connections with an interconnected infrastructure, green space network and mixed use areas defined by: District and city services that are delivered efficiently through an incrementally developed infrastructure system A connected green space network linking city parks and green spaces with neighbourhoods and inter-connecting city and rural facilities and open spaces within the district Mixed use which is viewed as the best way to create viability and inter-connections between the places where people live, work, play and shop Quality, Natural and Built Environments.1 A green and environmentally sensitive district which manages development in harmony with the environment, focuses on healthy living including clean water, air and earth and encourages walking and cycling defined by: Nature and natural landscapes that are preserved as integral components of a quality urban and rural environment Development in harmony with the environment Ecological diversity is conserved and nurtured for future generations A commitment to preserving the quality of water, air and earth Infrastructure that encourages walking, cycling and physical well-being.2 An attractive natural and built environment that makes room for nature in the city and rural countryside and promotes attractive creative spaces defined by: Nature within easy reach of the City of Portage la Prairie and rural urban Centers Crescent Lake, The Island, Delta Marsh and the Assiniboine River Public art as expression of creativity 1-5

12 .3 A district of distinct communities displaying a sense of community, accessible community services, beauty and mobility defined by: Inter-connected, vibrant and friendly neighbourhoods Urban design that creates high quality and inter-connected living, working and recreational areas Child, youth, family and elderly oriented community facilities and surroundings that are safe, inviting and comfortable Agriculture Diversity.1 A district in which agriculture is a valued and protected resource and where agricultural operations and opportunities for diversification are encouraged, defined by: Community recognition of the significance of agriculture to the economy and lifestyle within the district and commitment to supporting and protecting a full range of agricultural activities Rural land use policy directed towards the sustainability of the agricultural industry Commitment to agricultural diversification, value added agriculture enterprises and products supporting expansion of the District s agri-processing industry cluster Innovative Responsive Leadership.1 An innovative district sharing prosperity which encourages the development of a strong export-based rural agricultural economy, diverse service and manufacturing urban economy; strong local business network and connecting business and education to a skilled workforce defined by: [AM.B/L # ] A community that supports education and employment opportunities for young people A strong economy comprised of diverse urban economy based on service and manufacturing and a strong export-based rural agricultural economy [AM.B/L # ] A strong network of local businesses.2 A responsible and responsive district which demonstrates accountability, fiscal responsibility, open and participatory processes, community partnerships and public awareness defined by: 1-6

13 Capital spending priorities supporting community building strategies Open and visible participatory processes that ensure citizen involvement.3 A district of leaders and stewards with governments committed to building great communities in the Planning District defined by: All levels of government recognizing their mutual dependence and benefits of working together Individuals, business and communities actively participating in decisions affecting them The volunteer sector is thriving and people are inspired to become involved in effecting positive change Advocates of a sustainable Planning District 1.7 IMPLEMENTING THE PLAN The Development Plan is about the big picture. It sets out a clear direction for the Portage la Prairie Planning District. It is about vision and while any details of the Plan s implementation may vary from time to time, the vision and core principles upon which it is based will remain constant. This Plan provides a general guide but it cannot encompass every circumstance. The Plan provides direction for the detailed implementation strategies required to bring the Plan to life. More detailed implementation strategies may involve on-going consultation with key stakeholders in the community such as business in the future development of the downtown. Some areas for future residential growth, like the City of Portage la Prairie s east and northwest quadrants, will require more detailed neighbourhood plans. While other areas, like the re-orientation of the Portage Flying Club flight paths away from residential areas, will require specific action plans. Other initiatives like the future role of Southport in the Planning District will require plans which link the Corporation s business development of Southport with understanding of how business plans impact upon the land use, social, economic and infrastructure servicing relationships with the City and Rural Municipality of Portage la Prairie. Each of these detailed plans are important to the implementation of the Portage la Prairie Planning District Development Plan. They all have a common link to the Planning District s vision and support one another and the principles of the Plan. 1-7

14 1.8 ORGANIZATION OF THE PLAN This Plan is organized into Six Chapters. Chapter One articulates a vision for the future and outlines the principles for building a successful Planning District upon which this Plan is based. Chapter Two sets out the general policies that will shape the Planning District both internally as well as its relationships with adjoining First Nations and other levels of government in the development of a collaborative planning model for the region. Chapter Three sets out the general approach for implementing the Plan, including policies to guide preparation of Secondary Plans and Action Strategies. Chapter Four sets out the urban strategy for the City of Portage la Prairie, explaining the objectives for directing urban growth and sets out policies for the management of development and revitalization. Chapter Five sets out the urban-rural fringe strategy for managing land uses in the area adjacent to the municipal boundaries of the City of Portage la Prairie. Chapter Six sets out the rural strategy for the Rural Municipality of Portage la Prairie, explains the objectives and principles for managing agricultural land uses and development within rural areas and unincorporated communities of the municipality 1.9 HOW TO READ THE PLAN The Plan consists of policies and maps. The Plan also includes non-policy commentary, illustrations and reference maps to make the context and intent of objectives, policy statements and policy maps more readily understandable. Policy related text is provided in bold italic type and policy related maps are prefaced by the words Policy Map. 1-8

15 1.10 LAND USE POLICY AREAS Agriculture: A Agricultural Commercial: C Commercial CH Commercial Highway Downtown: D Downtown First Nations: FN First Nations Treaty Land Industrial: M Industrial MF Future Industrial MR Industrial Railyard MPB Poplar Bluff Industrial Institutional: I Institutional Open Space & Urban Hold: OS Open Space UH Urban Hold Residential: MH Mobile Home Areas R Residential RF Future Residential RP Peony Farm Residential RR Rural Residential Settlement Centres: O Oakville LSRSC Limited Service Rural Settlement Centre Southport: SASP Southport Aerospace Special Planning [AM.B/L # ] 1-9

16 2. Shaping The District 2.1 DISTRICT RESTRUCTURING The previous City and Rural Municipality of Portage la Prairie s Development Plans were 17 and 23 years old respectively. Since the adoption of each plan, a number of significant events have occurred, including large business and facility dissolutions, policy amendments, and major business and infrastructure investments. These changes have significant planning implications, as they affect, in part, the socio-economic and developmental nature of the city and region. The following is a list of some of the key events which have altered the character of the Planning District: Portage s Canadian Forces Base closure was announced in In 1992, Bombardier was contracted to manage the Southport s Flight Training facility. That contract has served as the basis for Southport s recovery; In 1991, the Campbell Soup plant closed, resulting in hundreds of lay-offs; In 1993, the City eliminated municipal business taxes; In 1995, McCain Foods Limited announced a $68.8 million expansion of their facility in the City s McMillan Industrial Park; There has been significant economic growth in Southport and in the Poplar Bluff Industrial Park since the 1980 s, signifying a trend toward clustering of industrial development in the Rural Municipality of Portage la Prairie; In 1998, a $40 million upgrade to the City of Portage la Prairie s wastewater treatment plant was completed. The project was funded by all three levels of government. In 2000, the City and Rural Municipality of Portage la Prairie entered into a tax sharing agreement which divides tax revenues from new commercial and industrial property development within the City and Rural Municipal boundaries. 2-1

17 In 2000, the $120 million investment in the JR Simplot plant was announced. In 2003, the plant become operational and presently employs more than 230 people; In 2002, it was announced that $15 million would be invested in the expansion of the Food Development Centre in the McMillan Industrial Park; In 2002, a new recreational and tourist attraction called Splash Island opened on the city s Island Park. Island Park is recognized as a unique resource and presents opportunities for the city to build upon the uniqueness of this resource; The desire by the community to stimulate downtown business investment by enhancing the image, services and amenities in the area; In 2004, a $20 million upgrade to the city s wastewater treatment plant and a $19 million upgrade to the city s water treatment plant were completed; The trend to larger farms and agricultural diversification has created a movement toward farm consolidation and livestock development; A declining population base experienced in the Portage la Prairie Planning District over the past fifteen years has shown signs of stabilizing. The Portage la Prairie Planning District s future will be a combination of growth and re-structuring of its urban and rural fabric. Population growth and employment training is needed to support economic vitality, diversification and social development within the Portage la Prairie Planning District and to contribute to a better future for the entire region. 2.2 A REGION OF PARTNERS The Portage la Prairie Planning District cannot plan in isolation or expect to stand alone in dealing with the factors shaping our communities and surrounding region. Although our view of the quality of life tends to be based on the local conditions in our own neighbourhoods, these conditions are in turn, affected by events in the broader region. The way the Portage la Prairie Planning District and its neighbouring First Nation government jurisdictions 2-2

18 manage their future development must recognize that they are integrally linked in many ways: The competitive position of the Portage la Prairie Planning District as an agricultural processing and regional economic service centre reflects the diversity, needs and strengths of the surrounding regional economy; Traffic does not stop at the borders but relies upon the regional road, and rail connections to distribute goods and services to the region; The Portage la Prairie Planning District is part of a larger ecological region, including Lake Manitoba, the Assiniboine River Corridor and natural areas like Delta Marsh; Because the Portage la Prairie Planning District has evolved as a focal point for specialized services for the region as a whole in fields of education, healthcare, tourism, transportation, agriculture product processing, rail service, flight training and retailing, the District will continue to play an important role in the life of all residents of the surrounding area..1 The Portage la Prairie Planning District recognizes that all levels of government share a mutual inter-dependence and will encourage a cooperative approach and promote the benefits of working together to serve community needs..2 Cooperative and inter-municipal servicing initiatives will be encouraged including possible revenue sharing agreements to equitably share costs and benefits of future development in the Planning District. 2.3 COLLABORATIVE PLANNING WITH REGION S FIRST NATIONS First Nation land is excluded from the planning jurisdiction of the Portage la Prairie Planning District. To guide future development decisions among the communities, the Planning District will work cooperatively with First Nations in areas of mutual interest. Certain lands which the Long Plain First Nation has acquired on the west boundary of the City of Portage la Prairie are not part of the Reserve s territory and are within the Planning District s jurisdiction. These lands have 2-3

19 been acquired as part of a Treaty Land Entitlement. Long Plain First Nation wishes to develop these lands and has indicated an interest in negotiating an agreement with the planning district partners to service and connect these lands to infrastructure services and roadways within the City and Rural Municipality of Portage la Prairie..1 Encourage the application of compatible zoning and development standards with First Nations for lands within the Planning District and for First Nation lands that may be serviced with City or Municipal infrastructure. 2.4 PORTAGE LA PRAIRIE PLANNING DISTRICT S ECONOMIC HEALTH The Portage la Prairie Planning District s economy is reliant upon its roles as a regional health, government and education institutional centre and as an agricultural center including research and food processing. Together, these two roles for the Portage la Prairie Planning District have helped weather economic downturns and maintain one of the most diverse economies among Manitoba s municipalities and cities. By designating areas suitable for population and job growth, agricultural production and improving city access and truck transportation connections, this Plan creates opportunities for development to accommodate diverse business ventures in downtown Portage la Prairie, adjacent to key transportation service nodes, in industrial parks and to stimulate agricultural diversification in rural areas. By moving away from specialized simple use districts and emphasizing the mixing of urban activities and flexibility in rural land use, this Plan establishes adaptive policies to meet the changing economic conditions of the future. Today, the real competitive advantage for urban and rural economies lies in building foundations that support inter-connected local and senior government plans, that promote growth in economic clusters and that bring wealth to the region, including: Well educated and skilled work force Innovation Access to financial capital Adequate infrastructure (including communication networks) A dynamic business climate Quality of life advantages equally accessible to individuals and families 2-4

20 This Plan has policies and an implementation framework to improve the Portage la Prairie Planning District s quality of life and create a broad base for economic growth..1 Economic opportunities will grow with the success of this Plan s strategy to manage growth and change in ways that: a) guide development to parts of the District where it will be most suitable; b) facilitate this development through clear, easily understood rules; c) encourage quality urban design in new City development; and d) ensure high quality City and Rural Municipal infrastructure to support growth..2 Support efforts of the Regional Health Authority, Portage School Division, Agriculture Research and Food Development Centre, Southport Training Centre and First Nation governments to expand regional economic activity and business opportunities..3 To encourage business leadership and investment to develop and maintain the competitive position of the Planning District in the regional economy. 2.5 BUILT URBAN FORM Within the City of Portage la Prairie and the District s urban communities, the personal enjoyment of streets, neighbourhoods and open spaces depends largely on the visual quality, activity, comfort of the environment and perception of safety in those places. Most of these qualities are influenced by the built form and organization of these spaces..1 New commercial, residential and institutional development will be located and organized to fit with its neighbourhood or planned context. It will frame and support adjacent streets, parks and open spaces to improve the safety, pedestrian interest and casual views to these spaces from the development by: a) generally locating buildings parallel to the street or along the edge of a park or open space with a consistent front yard setback. On a corner site, the development should be 2-5

21 located along both adjacent street frontages and give prominence to the corner. If located at a site that ends a street corridor, development should acknowledge the prominence of that site; b) locating main building entrances so that they are clearly visible and directly accessible from the public sidewalks; and c) providing ground floor uses that have views into and where possible, access to adjacent streets, parks and open spaces..2 New commercial, multi-family residential and institutional development will locate and organize vehicle parking, vehicular access, service areas and utilities to minimize their impact on the property and on surrounding properties and to improve the safety and attractiveness of adjacent streets, parks and open spaces by: a) using shared service areas where possible, within development block(s) including public and private lanes, driveways and service courts; b) consolidating and minimizing the width of driveways and curb cuts across the public sidewalk; c) integrating services and utility functions within buildings where possible; d) limiting surface parking between the front face of a building and the public street or sidewalk; and e) integrating parking spaces with building design and have usable building space at grade, facing adjacent streets, parks and open spaces..3 New commercial, multi-family residential and institutional development will be designed to fit harmoniously into its surroundings and will respect and improve the local scale and character. It will minimize the impact on neighbouring buildings and open space by: a) creating a transition in scale to neighbouring buildings; and b) providing adequate privacy and ensure adequate separation between building walls..4 New commercial, multi-family residential and institutional development will provide amenity for adjacent streets and open spaces to make these areas attractive, interesting, comfortable and functional for pedestrians by providing: 2-6

22 a) improvements to adjacent boulevards and sidewalks, including street trees, lighting and other street furniture; b) coordinated landscape improvements in setbacks to create attractive transitions from the private to public realms; c) weather protection, such as canopies and awnings; d) landscaped open space within the development site; and e) landscaped edges of surface parking lots along streets, parks and open spaces to define the street edge and visually screen the parked autos. 2.6 URBAN INFRASTRUCTURE Service infrastructure plays a vital role in both the City as well as the Rural Municipality of Portage la Prairie urban development areas. Maintaining this infrastructure in good condition is critical to the competitiveness of the District in serving current users and attracting new development. Utility corridors provide for the transmission of energy, communication and movement of people and goods. Utility corridors consist of rights of ways. These right of ways often become a defining element in the landscape fabric of a community such as the rail corridors for CN and CP rail through the City of Portage la Prairie and Manitoba s hydro transmission corridor adjacent to the north side of Saskatchewan Avenues east entrance to the City. These utility corridors should be managed to ensure compatibility with adjoining uses and where possible include opportunities for public mixed uses. Portage la Prairie Planning District s utility corridors include rail, oil/gas and hydro corridors used for the transmission of energy, information, people or goods. Other infrastructure needed to provide a quality living environment to residents, includes the provision of safe drinking water, treatment and disposal of sewage, solid waste disposal and storm water management. This may mean improvements to distribution treatment and collection capabilities, as well as regional solutions for solid waste management and recycling programs..1 The Portage la Prairie Planning District s infrastructure including roadways, solid waste, water, storm drainage and wastewater services will be maintained and developed to support the built form and land use policies of this Plan by: a) providing adequate facilities and facility capacities to support new development including new subdivisions, and maintaining the infrastructure in a state of good repair; 2-7

23 b) supporting, encouraging and implementing measures and activities which promote environmental sustainability by reducing water consumption, wastewater and storm water flows; and by c) supporting the development of a district solid waste management program..2 Utility corridors will be protected from incompatible development through such measures as setbacks, fencing, site grading and landscaping to screen and secure the property edge adjacent to the utility corridor..3 Subject to the consent of Manitoba Hydro and the District Board, Hydro corridors may be used for secondary purposes including such uses, as parks, pedestrian and cycle trails, agriculture, parking lots and storm water management. Secondary uses in hydro corridors will: a) be compatible with the primary use of the corridor and adjoining lands including use and visual qualities; and b) protect potential open space links within the corridor right of way..4 Rail corridors may be protected for future use as public transportation routes, bicycle and pedestrian trails..5 This Plan is intended to create a better urban environment, a competitive local economy and a more socially cohesive community, by attracting more people and jobs to the Portage la Prairie Planning District, supported by good transportation services and other infrastructure..6 Development will be managed in order to: a) use municipal land, infrastructure and services efficiently; b) create assessment growth and contribute to the Portage la Prairie Planning District s fiscal health; c) promote mixed use development to increase opportunities for living close to work and to encourage walking and cycling for local trips; and d) protect neighbourhoods, green spaces and natural heritage features and functions from the effects of nearby development. 2.7 COMMUNITY SERVICES AND FACILITIES Quality of life is recognized as one of the most important measures of a competitive community. Promoting a high quality of life in the Portage la Prairie Planning District will benefit from effective and coordinated planning, 2-8

24 the involvement of human service sectors and investment in social infrastructure. Social infrastructure includes the whole system of government and community resources, programs, facilities and social networks that contribute to people s health and well-being. Investment in social infrastructure will be guided by the core principles and community s values of equity, equality, access, participation and social cohesion within the Portage la Prairie Planning District. For local organizations to deliver services and meet community needs, they require access to community service facilities such as community and recreation Centers, arenas, schools and libraries. Making the best use of what the district has, promoting shared use and shared responsibility and preparing for change are hallmarks of a strong future for the Portage la Prairie Planning District..1 Shared use of multi-service facilities will be encouraged. The addition of other uses on school sites, including other community service facilities, may be permitted, provided proposed uses fit within the neighbourhood context..2 Surplus school grounds and government lands will be encouraged to be re-used for community service purposes where alternate public uses have been identified as a priority. Where this is not feasible, alternate uses of closed schools, public facilities or surplus public lands will be encouraged to be developed with the adjoining neighbourhoods to ensure proposed uses are compatible with the neighbourhood character. 2.8 HERITAGE RESOURCES Heritage buildings and landscapes create a unique sense of place and local identity with the historical foundations of the community..1 Significant heritage resources will be conserved in consultation with Manitoba Historic Resources Branch of Manitoba Culture, Heritage and Tourism by listing properties of architectural and/or historical interest and entering into conservation agreements, as required, with owners of designated heritage properties;.2 Development adjacent to these heritage properties will respect the scale, character and form of the heritage buildings and landscapes; 2-9

25 .3 The impacts of projects that may be in the vicinity of heritage resources will be assessed and every effort made to minimize the impact upon the heritage resources; 2.9 CULTURAL ASSETS Arts and cultural activities enrich the day to day quality of life of residents and visitors and play an important role in defining the identity of the Planning District and projecting an image beyond the District s boundaries. The cultural sector is also an important contributor to the local economy. Cultural assets contribute to a healthy District economy by promoting tourism and helping to attract businesses and employees to the communities..1 A full range of arts and cultural activities, from community-based endeavours to regional endeavours, will be encouraged in the Portage la Prairie Planning District to express the cultural diversity of the region;.2 The arts and cultural community may have access to municipal owned facilities and property, for non-profit community arts performance venues, arts education and training programs, studio, rehearsal, storage and administrative space;.3 The arts and cultural community will be encouraged to participate in public and private initiatives to beautify the District s communities. 2-10

26 3. ImplementatIon Plans are only as good as their implementation. This Chapter outlines a variety of tools that the Portage la Prairie Planning District can bring to bear to make things happen, including both the traditional tools that govern plans of subdivision, zoning by-laws, minor variances, consents, development agreements and also policies that provide guidance as to the form of municipal influence needed to fulfill this Plan s objectives. Also presented is a framework for ongoing monitoring processes that will ensure that the Plan is effective over the long term. 3.1 TOOLS TO MANAGING GROWTH AND CHANGE The Planning Act provides traditional tools that govern plans of subdivision, zoning by-laws, minor variances, consents and development agreements. These are the basis for the day-to-day development approval process. The Planning Act provides tools to help municipalities create new parks, open space and community infrastructure for the additional residents and workers that growth brings. Used thoughtfully and consistently, these mechanisms ensure balanced growth that will help make the Portage la Prairie Planning District a good place to live, work and play. These tools include park dedication standards and phasing programs, to ensure that community infrastructure is in place prior to development, the designation of special improvement zones, capital levies and site plan control, to ensure that trees and landscaping are provided and that development is well designed, functional and integrated into the urban fabric. This section of the Plan contains the required authorization and policies for these tools Zoning By-Laws They establish land use zones and requirements. They clearly define the land to which certain uses may or may not be assigned; control the location, bulk and shape of buildings to be constructed on building sites; prescribe minimum building sites and dimensions; and prescribe minimum acreages to be devoted to public use. In this regard, the Development Plan is used as a guide in preparing or amending the Zoning By-Law. For example, in studying an application for rezoning, the local authority should base its decisions on the objectives, the principles, the policies and the land use proposals laid down in the Development Plan. 3-1

27 3.1.2 Subdivision Regulations They allow the local authority to control the subdivision of land under the authority vested in it by the Planning Act. The Planning District Board may recommend a subdivision plan only when the policies of the Development Plan and Municipal by-laws are complied with. The street pattern, location of public uses and provision of adequate easements and rights-of-way, can therefore, be controlled by the Municipality. Again, decisions regarding the approval of proposed plans of subdivision are guided by the objectives, principles and policies of the Development Plan Building Regulations Through a Building By-law adopted under The Manitoba Building and Mobile Homes Act, the Planning District Board can establish the minimum provisions or standards which new and renovated buildings have to meet, in order to protect the safety and health of the public. This will control the minimum standard of construction and maintenance within a developed or redevelopment area Public Works Programs If public works or services are undertaken in accordance with the policies set out in the Development Plan, the Municipality will have a good chance of controlling the rate and direction of development, by its policy regarding the installation of public facilities and services. For example, control over the growth of residential areas may be exercised by extending public facilities and services into vacant land, only if it meets the objectives, principles, policies and land use proposals set out in the Development Plan Development Agreements Wherever applicable, a developer may be required to enter into agreement with the Municipality regarding the level and standards of workmanship for services and utilities, the dedication of land for public uses, the phasing of development, the developers financial commitments to the public, the posting of bonds to guarantee the completion of the project and the extent to which tree removal will be permitted in the subdivision. This will ensure that the development will take place in such a manner that the general wellbeing of the surrounding property owners or the community as a whole, will be protected. 3-2

28 3.2 MAKING THINGS HAPPEN Successful implementation of this Plan depends to a large degree on whether its policies can guide local development and action in a variety of contexts over the next 20 years. This Section contains policies to ensure that planning is sensitive to local conditions in specific districts of the community, while at the same time advancing the Plan s core principles and building on its broad objectives. Implementation of this Plan may be guided by the initiation of a number of specific action plans and strategies available to the District Board and Councils as follows Corporate Strategic Plan Corporate Strategic Plans may be prepared by District Councils in support of budget making: Can be a link between the District Development Plan and the localized priorities, phasing and budget allocations determined by Municipal Council. Can set the stage for the preparation of five year capital strategies to implement initiatives proposed by Council and for the annual review of the District Plan and validation of local planning priorities by Council. Corporate Strategic Plans strive to: Increase corporate efficiency and effectiveness by providing municipal staff and Council with a comprehensive overview of programs, priorities and budget allocations across the corporation that are important to achieving the goals of the District Development Plan; and Nurture cross departmental and inter-governmental partnership and cooperation Secondary Plans Part 4, Division 2 of the Act provides for the adoption of Secondary Plans, which may set the stage for the development of a defined area, to stimulate and guide development in keeping with the District Development Plan s objectives and include opportunities for public and government agency input and validation of the Secondary Plan s implementation strategies. Secondary Plans may be prepared for areas demonstrating one or more of the following characteristics: 3-3

29 a) large tracts of vacant or underutilized land, which would benefit from comprehensive planning, to enable suitable development or redevelopment; b) areas targeted for major public or private investment; and c) areas where development is occurring, or proposed at a scale intensity or character, which necessitates reconsideration or reconfiguration of local streets, block plans, public works, open space or other public services or facilities. Secondary Plans may promote a desired type and form of physical development, resulting in highly functional and attractive districts and plan for an appropriate transition in scale and activity between neighbouring districts. Implementation strategies under Secondary Plans will identify or indicate the following: a) overall capacity for development in the area; b) opportunities or constraints posed by unique environmental, economic, heritage, cultural and other features or characteristics; c) policies for development, redevelopment, intensification and/or infilling; d) urban design objectives, guidelines and parameters; and e) necessary infrastructure investment with respect to any aspect of transportation services, environmental services, community and social facilities, cultural, entertainment and tourism facilities, pedestrian systems, parks and recreational services, or other local or municipal services. Secondary Plans represent a link between the Corporate Strategic Plan and the objectives of the Development Plan. Appropriate amendments to Municipal zoning by-law as may be required to implement Secondary Plans Improvement Strategies Promoting rehabilitation, revitalization and redevelopment of districts where inter-jurisdictional and both public and private interests are impacted. The focus of these plans may be the revitalization of the City of Portage la Prairie downtown; re-urbanization of Saskatchewan Avenue as a quality Main Street entrance to the City of Portage la Prairie; re-organization of the regional highway system connections to the Planning District and its adjoining municipalities road system to improve the safety and efficiency of truck traffic flow to the industrial parks and through the City of Portage la Prairie; rejuvenation of central neighbourhoods and stimulating employment and industrial development within the Portage la Prairie Planning District. 3-4

30 Improvement Strategies may be prepared to promote the maintenance, rehabilitation, revitalization and/or conservation of selected lands, buildings and districts facing challenges of transition, deficiency or deterioration or for any other environmental, social or community economic development reason and their preparation will include opportunities for public and government agency input and validation of the Improvement Strategy s policies and implementation programs; Area Improvement Strategies may be identified for areas exhibiting one or more of the following: a) physical decline in local building stock; b) conflicts between incompatible land uses or activities; c) deficient or deteriorated public infrastructure and/or amenity, including parks, open spaces, community facilities and streetscapes; d) barriers to the improvement or redevelopment of vacant or underutilized land or buildings, such as contaminated soil, fragmented ownership, or financial disincentive to private investment; and e) declining social, environmental and/or economic conditions. Area Improvement Strategies may be prepared to provide direction regarding one or more of the following: a) strategic inter-governmental partnerships and coordinated public/private investment to repair or upgrade municipal infrastructure, integration of regional highway and rail transportation networks, community services and/or public amenities; b) allocation of public funds, in the form of grants, loans or other finance instruments, for the physical rehabilitation or improvement of private land and/or buildings, including rehabilitation of contaminated properties; c) municipal acquisition of lands or buildings and any subsequent clearance, rehabilitation, redevelopment or resale of these properties; and d) other municipal actions, programs or investment for the purpose of stimulating, strengthening district stability, facilitating local physical or economic growth, improving social or environmental conditions, or promoting urban revitalization. Area Improvement Strategies represent implementation strategies which may be linked to the Corporate Strategic Plan or Secondary Plan in support of the objectives and policies of the District Development Plan. 3-5

31 Appropriate amendments to Municipal zoning by-laws may be required to implement an Area Improvement Strategy Concept Plans Concept plans are reference plans, not policy plans. They represent design layout concepts prepared at the direction of the District Board or Municipal Council. Concept plans provide direction for how new developments within designated Rural Urban Centers may be organized to: a) ensure the efficient provision of infrastructure services; b) demonstrate how site development will be organized to ensure compatibility with adjoining land uses and transportation systems; and c) provide design features for special purposes such as landscaping, buffers, open space, and pedestrian and vehicular accesses. Concept plans may be linked to a Secondary Plan in support of the objectives and policies of the District Development Plan. 3.3 THE PLAN GUIDES ACTIONS As a statutory document for guiding growth and change in the Portage la Prairie Planning District, the Development Plan gives direction to the Planning District Board and Municipal Councils on their day-do-day decision making. The Plan s land use policy areas are illustrated in Policy Map 1 City Land Use Policy Areas, Policy Map 2 - Urban-Rural Fringe Land Use Policy Areas, Policy Map 3 - Rural Land Use Policy Areas and Policy Map 4 Oakville Land Use Policy Areas. These policy maps provide a geographic reference for the Portage la Prairie Planning District s urban and rural planning directions to inform budget processes, corporate strategic planning and public investments and programs. If the Portage la Prairie Planning District is to move closer to the future envisioned by the Plan, in addition to giving direction to capital expenditures for infrastructure projects, the Plan must guide other related decisions of the Planning District Board. The Planning Act requires that all by-laws enacted and public works undertaken by the Portage la Prairie Planning District conform to its Plan. Whether it be a policy decision with a minimal price tag or a major capital expenditure, decisions should be evaluated against the goals and objectives of this Plan. All municipal departments, agencies, boards and commissions have a role to play in realizing the vision, applying the principles and achieving the quality of life objectives of the Plan. Municipal by-laws and public works to conform to this Plan. 3-6

32 Decisions and actions of the Planning District Board, City and Rural Municipal Councils and staff, including public investment in services, service delivery and infrastructure, to be guided by this Plan. Implementation plans, strategies and guidelines, consistent with this Plan to be adopted, identifying priorities, detailed strategies, guidelines and actions, to advance the vision, goals and objectives of this Plan. Maintaining community infrastructure and assets in a state of good repair is a municipal investment priority. The need for new municipal investment to replace, enhance or build new infrastructure to implement this Plan, may be identified through a variety of implementation plans and strategies. These include Area Improvement Strategies, community service and facility strategies and other similar initiatives, based on population and employment growth and existing unmet needs. City and Rural Municipal resources, especially lands and buildings, will be used to their best strategic advantage, to advance the objectives of this Plan and associated implementation plans and campaigns and to leverage other public and private investment. 3.4 THE FUTURE IS A SHARED RESPONSIBILITY Municipal governments cannot build great communities on their own. The District Board, City and Rural Municipal Councils can lead by example, but ultimately, leadership needs to be shared with business, other public institutions, non-governmental organizations, community groups, residents and community volunteers to unleash ideas, energies and resources in common ventures. A community is successful when all sectors care enough to give their time, effort and money to enhance the quality of life in their community. A City and Municipality with an engaged and informed citizenry and business sector will attract greater levels of involvement and investment from other levels of government. Achieving the goals and objectives of this Plan will be a shared responsibility where the Portage la Prairie Planning District Board and Municipal Councils can lead by: a) example and pursue excellence and leading edge practices in all fields of municipal endeavour; b) advocate for legislative powers and sustainable revenue sources commensurate with the expectations placed on the Portage la Prairie Planning District and Municipal Councils 3-7

33 to deliver services and programs and an excellent urban/rural quality of life; c) exert influence through policy levers and partnerships; and d) seek partnerships with other levels of government, the business sector and non-governmental and community organizations. Initiate campaigns to promote creative community partnerships, public engagement and community based leadership and where appropriate, link with existing initiatives, to maintain a vital, attractive, inclusive and economically competitive District. Initiate campaigns to engage community groups, business and industry, non-governmental organizations, educational, arts and cultural communities, Planning District Board and representatives of other levels of government, to achieve progress over time, in the implementation of the District Development Plan. 3.5 MONITORING PERFORMANCE Over the life of the Plan, it is probable that course correction will be needed and policy changes may be warranted from time to time. Similarly new implementation initiatives may be needed and priorities may require adjustment in response to the varied and changing conditions in the Portage la Prairie Planning District. Monitoring facilitates the ability to respond to these changes and can improve the quality of decision-making. Responsiveness, adaptability and continuous improvement will be enhanced through a commitment to tracking key indicators of social, economic, environmental and fiscal conditions and by understanding the real changes to quality of life and their underlying causes. Progress and success can be determined from periodic assessments of the Plan s key elements and agenda. These periodic assessments will look at the success of the growth and revitalization strategies of the Plan, the quality of the living, working and recreational environments that have been created and the Portage la Prairie Planning District s evolving relationship with the broader economic region. These assessments may reveal new emerging priority areas that may be addressed through Corporate Strategic Plans, Improvement Strategies or changes to the Plan itself. In accordance with the Planning Act, the Planning District Board will complete a detailed review of this development plan within seven years of its adoption. The following explanations provide guidance for the understanding and interpretation of the text, maps, schedules, figures and images of this Plan. 3-8

34 The Plan should be read as a whole to understand it s comprehensive and integrative intent as a policy framework for priority setting and decision-making; Chapters One to Six and Policy Maps 1, 2, 3 and 4 are part of the Plan. Other maps or illustrations contained in the Plan are not official policy maps, but reference maps. All related text and illustrations are provided for information and are not part of this Plan; The bold italic text within Chapters One to Six contains the policies of the Plan. Other non-policy text within Chapters One to Five is provided to give context and background and assist in understanding the intent of the policies; Illustrations, sidebars and photos are included for the purpose of illustration only and are not part of the Plan; Boundaries illustrated for land use designations are general, except where they coincide with fixed, distinguishable features such as roads, railroads, watercourses and other clearly defined physical features. Where the general intent of the Plan is maintained, minor adjustments to boundaries will not require amendment to this Plan; The general policies of this Plan under Section 2 Shaping the District, Section 3 Implementation and Section 5 Urban Rural Fringe apply to both Section 4 City Land Use Policies and Section 6 Rural Land Use Policies areas identified in this Plan; The indication of any proposed roads, parks, municipal services or infrastructure in policy text or on Plan maps or schedules, will not be interpreted as a commitment by the District to provide such services within a specific time frame. The indication of any proposed roads, parks, services of infrastructure in policy text or on Plan maps or schedules, will not be interpreted as necessarily being specifically or solely the responsibility of the City or Rural Municipality to provide, finance or otherwise implement. 3-9

35 4. CITY land use policies Building a successful community means making choices that improve quality of life. As the City of Portage la Prairie grows and matures, a more beautiful environment, healthy and vibrant neighbourhoods and greater prosperity can be created. The principles of sustainable development provide a challenge to meet today s needs without compromising the ability of future generations to meet their needs. The policies of this Chapter will guide development of the City of Portage la Prairie by integrating social, economic and environmental perspectives in decision-making processes. The policies will help bring to life the vision of a successful community by focusing on the built environment, the human environment, the natural environment and economic health of the community. All applications for development will be evaluated in consideration of the policies in this Chapter, to ensure that the best possible choices are made. 4.1 UNDERSTANDING CITY URBAN STRUCTURE The City of Portage la Prairie is characterized by four regions, each created in part by its limited connections to the other and their distinct physical characteristics. Transportation corridors play a significant role in defining and characterizing each region. All four regions of the City are characterized by distinct geographical parts which are illustrated in Reference Map 3 City Regions. Each part of the urban region is defined by their land use characterizations and inter-relationships to the larger community. The City of Portage la Prairie s regions are connected by a transportation hierarchy of roadways and divided by transportation corridors and open spaces. Each region s unique boundaries and distinct land use characteristics creates a city structure which impacts upon the character of the community. How the City s structure inter-relates, the nature of its development issues and opportunities are affected by the broad factors influencing urban form and function. The Plan s Land Use Policy Initiatives for the City of Portage la Prairie and its urban regions are presented in this Section. Policy Map 1 appended to the Development Plan illustrates the locations of the City Land Use Policy Areas. 4-1

36 4.2 RESIDENTIAL NEIGHBOURHOODS Neighbourhoods are where people connect with people to develop a common sense of community. They are also an important asset in attracting new business to the City of Portage la Prairie and new workers. It is necessary for the economic strength of the community to have citizens engaged in the process of building a great community. Vibrant and healthy neighbourhoods are a defining element of the human ecology of the community, where each person is connected to and affected by the welfare of neighbours..1 Development within neighbourhoods will respect the existing physical character of buildings, streetscapes and open space patterns in the community;.2 Development activity on arterial streets and mixed use areas next to neighbourhoods will ensure a transition in scale and density from the development to the neighbouring community..3 The functioning of the local network of streets in neighbourhoods will be improved by: a) maintaining roads and sidewalks in a state of good repair; b) minimizing through traffic on local streets; and c) discouraging parking on local streets for non-residential purposes..4 Efforts will be made to promote environmental sustainability in neighbourhoods..5 Community and neighbourhood amenities will continue to be enhanced where needed by: a) connecting parks, recreation facilities, schools and other community services; and b) creating new community facilities and adapting existing services to changes in the social, health and recreational needs of the neighbourhood Existing Neighbourhoods The City of Portage la Prairie neighbourhoods contain a full range of residential uses with low density single family, low scale multi-family and multi-storey residential uses as well as parks, schools, local institutional and some small scale stores serving the needs of neighbourhood residents. 4-2

37 As the information age advances and the economy changes, residents of the City have begun to work from their homes, creating viable economic activity. A demand is recognized for providing opportunity for home occupations in City neighbourhoods. While the City of Portage la Prairie s neighbourhoods experience constant social and demographic change, the general character of the city s residential neighbourhoods endures. Physical change to the City s established neighbourhoods must be sensitive, gradual and generally fit the physical character. A key desire of the Plan is to ensure new development respect and reinforce the positive characteristics and physical patterns in a neighbourhood. Scattered throughout a number of neighbourhoods are properties that differ from the prevailing patterns of lot size, configuration and orientation. Typically these sites may have been formerly used for non- residential uses or were passed over in the development of the neighbourhood. In converting these sites to residential uses there is an opportunity to add to the quality of the neighbourhood life by filling in the gaps and extending streets and open spaces. Due to site configuration it may not be possible to provide the same site standards and pattern of development in these infill projects as exist in the surrounding neighbourhood. Special infill criteria are provided by the Plan to guide the development and integration of these sites into City neighbourhoods..1 Development will respect and reinforce the general physical patterns and character of established Neighbourhoods with respect to: a) patterns of street, blocks and lanes, parks and public building sites; b) general size and configuration of lots; c) heights, massing, scale and type of dwelling unit compatible with that permitted by the zoning by-law or nearby residential properties; d) prevailing building types; e) setback of buildings from the street or streets, side and rear yard setbacks; f) continuation of special landscape or built form features that contribute to the unique character of a neighbourhood; and g) conservation of heritage buildings, structures or landscapes..2 Infill development on properties that vary from the local pattern in terms of lot size, configuration and/or orientation in established neighbourhoods will: 4-3

38 a) have heights, massing and scale appropriate for the site and generally be compatible with that permitted by the zoning applied to adjacent residential and nearby properties; b) front onto existing or newly created public streets; and c) locate and screen service areas and garbage storage to minimize the impact on existing and new streets and residences Multi-Family Neighbourhoods Rental apartments and multi-unit condominium developments are an expanding segment of the City s residential inventory. Many of these buildings are clustered in areas already established as multi-family neighbourhoods. In these established multi-family neighbourhoods improving amenities and accommodating sensitive infill development are key considerations. Residents in multi-family neighbourhoods should have a high quality urban environment that is safe and has access to quality residential amenities and services. Multi family neighbourhoods include low rise townhouses as well as buildings with greater scale and multiple storeys. Often times there are opportunities in the transitional areas between multi-family neighbourhoods and commercial areas and lower density residential areas for additional multifamily development. This Plan sets out criteria to evaluate these situations. Some sites because of built context or lack of space are not candidates for infill multi-family development. Infill development on underutilized sites that meet the Plan s criteria can create a benefit for the entire community..1 Apartment neighbourhoods are made up of multiple storey apartment buildings, multi unit low rise residential units, parks, institutional, cultural and recreational facilities and small scale commercial retail office and service uses that serve the needs of area residents..2 Apply the following development criteria in multi-family neighbourhoods so as to contribute to the quality of life by: a) locating and massing new building development to provide a transition between areas of different development intensity and scale in particular by providing setbacks and a stepping down of heights toward a lower scale neighbourhood; b) locating and massing new building development to minimize shadow impacts on adjacent lower scale neighbourhoods; 4-4

39 4.2.3 Housing c) locating and massing new development to frame the edge of streets and parks with good proportion and maintain sunlight and comfortable conditions for pedestrians on adjacent streets and public open spaces; d) including sufficient off-street vehicle parking for residents and visitors; e) locating and screening service areas, ramps and garbage storage to minimize impact on adjacent streets and residences; and f) providing buildings that conform to principles of universal design and where ever possible contain units that are accessible or adaptable for people with physical disabilities. Adequate and affordable housing is a basic requirement for everyone. Where we live and our housing security contributes to our wellbeing and connect us to our community. Current and future residents should be able to access and maintain adequate, affordable and appropriate housing. The City s quality of life, economic competitiveness, social cohesion as well as balance and diversity depend upon it. There are three areas the City of Portage la Prairie may wish to address: 1) Stimulate production of new private sector rental and affordable ownership housing by encouraging senior governments to create a business environment that promotes affordable and mid-range housing opportunities. 2) Make efficient use of housing resources by seeking the coordinated application of senior government housing initiatives to ensure housing can be made available and maintained to meet the needs of the community. 3) Working in partnership with senior levels of government, the private and non-profit sector to take advantage of new housing opportunities. 4.3 INSTITUTIONAL AREAS The quality of public institutions are relied upon at every stage of life. Educational, health care facilities and public cultural facilities are major contributors to a high quality of life in the City of Portage la Prairie. Local community institutions such as schools, libraries, day care, nursing homes, places to worship and recreation Centers are woven into the fabric of the City and permitted in most locations. However, major health and secondary educational and government institutional uses are designated as Institutional 4-5

40 Areas. In the City of Portage la Prairie, these institutions are the largest employers within the City and attract thousands of employees, patients, students and visitors each day. Institutional areas are made up of major educational, health and government uses including correctional institutions, ancillary uses, cultural, religious uses, parks and recreational uses Institutional Site Development.1 Recognize linkages where they exist between major institutional uses and private sector by permitting uses such as professional offices or services associated with major institutional uses to locate in institutional areas..2 Institutional facilities which serve a broader regional population should, wherever possible, locate with convenient access to arterial streets..3 Development or expansion of major institutional uses will be encouraged to create site development plans in consultation with nearby neighbourhoods that will: a) establish development in a manner compatible with adjacent neighbourhoods; b) minimize traffic infiltration on existing neighbourhood streets; c) create visual and physical connections that integrate the project with adjacent streets and development areas of the City; d) identify the building envelopes for each building, site access and parking areas for the project; e) identify pedestrian routes to be incorporated into the project; f) identify how the project will be phased and how planned growth for the site will be accomplished; and g) identify any lands that may be surplus for institutional needs and potential alternate uses..4 When lands in institutional areas or the sites of government, health care or educational institutions are declared surplus, the owner is encouraged to consult with the local neighbourhood and to investigate the possible use of the site for an alternate suitable public institutional use, affordable housing or public open space, before applying to redesignate the lands for other purposes. 4-6

41 4.4 COMMERCIAL LAND USE The Future of Retailing The pattern of retail activity in the City of Portage la Prairie has evolved over time. It includes traditional Main Street, small plazas, and shopping malls on the periphery of the City, to consideration of big box stores. The retail sector has seen some dramatic shifts over the past 25 years in the Portage la Prairie Planning District. Retailing will continue to be an important part of the economy. However, the retail patterns of today are very different from those of 15 to 20 years ago. There is every reason to expect them to evolve over the next 20 years. Therefore, this Plan provides flexibility for commercial properties to adapt to changing circumstances. The Downtown and Saskatchewan Avenue mixed use policies are intended to permit residential, retail, office and service uses in these areas to support the existing retail space that may not be faring well and to implement the Plan s goals to guide the urban restructuring of the City of Portage la Prairie. New retail development must also suit the local context and this Plan s objectives. Retail stores are permitted on neighbourhood arterials, to reduce auto trips and serve convenience needs, but they must fit with the physical form and not disturb neighbours. Large scale, stand-alone retail stores that attract significant traffic, are designated by the City Zoning By-law. The Plan also recognizes that traditional shopping streets are more than a place for business. They are Centers of community activity that add life to adjacent neighbourhoods. The Plan reinforces the role of the Downtown and Saskatchewan Avenue as the retail focus of The Portage la Prairie Planning District..1 A strong and diverse retail sector will be promoted by: a) permitting a broad range of shopping opportunities for local residents and visitors, in a variety of settings; and b) supporting the development of specialty-retailing opportunities that attract tourists and residents from the broader economic region..2 Traditional retail shopping streets may be promoted as centers of community activity by: 4-7

42 a) encouraging quality development of a type, density and form that is compatible with the character of the area and with adjacent uses; b) encouraging public amenities, such as transportation and parking facilities, street furniture and landscaping; and by c) encouraging and supporting business associations in these areas Downtown: Heart of the City The Downtown plays a vital role in promoting the City of Portage la Prairie as one of Canada s most liveable small cities. A dynamic Downtown is critical to the health of the Portage la Prairie Planning District and to the surrounding region. The Downtown is the most accessible business location in the region and it is not surprising that it matches all other commercial areas in importance as a key employment centre in the regional economy. The economic strength of the Downtown arises from not only the largest concentration of retail and business uses, but from other activities located here: Government offices Specialty retailing Health services Education services Special events Cultural venues The concentration and interaction among all these activities and the ability to easily walk around the Downtown, provides potential and creates possibilities for synergy that can foster innovation, creativity and an atmosphere of success. Many Downtown activities are interdependent. The most obvious way these activities are linked is through Downtown spaces, including streets, parks, walkways and special areas. This is how people experience the Downtown. The key to successfully shaping Downtown and its future is to foster linkages and to recognize the planning complexities of this area. Well designed connections between the Downtown and city neighbourhoods, the Provincial road network, including PTH #1A and PR #240 and Crescent Lake are important to the image, vitality, attractiveness and competitive business location of the Downtown..1 Downtown will continue to evolve as a healthy and attractive place to live and work. New development will be encouraged which supports 4-8

43 the Downtown revitalization goals. In particular, the Downtown policies of this Plan will shape The Portage la Prairie Planning District s future by accommodating development that builds on the strength of Downtown as a retail, residential, cultural and employment centre within the region;.2 The Plan supports the maintenance of existing residential neighbourhoods in the Downtown. The commercial and residential policies of the Plan guide infill development and intensification of uses in the Downtown to achieve a liveable Downtown that meets the needs of varying age groups in combination with a choice of housing types and conveniently located shopping..3 The Plan acknowledges Portage la Prairie Downtown Development Concept Plan as a reference for the development of the City s Downtown Improvement Strategy Saskatchewan Avenue Commercial Corridor Saskatchewan Avenue is an important commercial corridor within the City of Portage la Prairie. As a gateway to the Downtown and the City, it is important to plan development of Saskatchewan Avenue understanding the role it serves as the City s Main Street and most important gateway. Creating consistency in the quality of Saskatchewan Avenue s character, the quality of its connections to the Downtown and relationships with surrounding noncommercial land uses will ensure continuing compatibility between Saskatchewan Avenue Commercial development with adjoining residential, institutional development and the downtown business district. The First impressions of the community are created by this street. An attractive entrance to the City and the Downtown are important to establishing a good impression of Portage la Prairie. Policies.1 The Plan recognizes Saskatchewan Avenue as a strategic corridor where planned development can improve Portage la Prairie as a competitive and attractive destination for future commercial and residential expansion. The Zoning By-law for Saskatchewan Avenue Commercial Corridor may consider urban design standards to achieve a high quality commercial development corridor along Saskatchewan Avenue which establishes: a) street access and setbacks; b) permitted uses; c) site and building development standards; 4-9

44 d) guidelines for transition areas between commercial and residential use types; e) landscaping; f) off-street parking; g) development densities; and h) open spaces and buffer areas..2 Saskatchewan Avenue represents the main entrance into the City of Portage la Prairie. Development will be encouraged to consider how this role can be used to create a sense of arrival and convey a positive and vibrant image of the City to visitors and residents..3 Retail development along the Saskatchewan Avenue commercial corridor is encouraged. It will be planned to suit the adjoining residential context and balance vehicle accessibility with the creation of a high quality pedestrian environment. 4. Large format stores and shopping centers are considered appropriate uses within the Saskatchewan commercial corridor. The special nature, large scale traffic volumes generated by these uses and their relationships with surrounding uses is best addressed in a planned context. Proponents of large format store and shopping center developments may be required to prepare Secondary Plans (See Section 3.2.2) to address land use and infrastructure solutions. 4.5 INDUSTRIAL LAND USE AND TRANSPORTATION Industrial/Business Districts The Industrial/Business Districts play important roles in the City s growth management. Within the City of Portage la Prairie, there are two Industrial/Business districts. These include the McMillan Industrial Park and Rail Corridor Industrial Area. Some of the City s Business Districts have access limitations, which impact their economic, and growth potential. Truck traffic generated by the McMillan Industrial Park and the Rail Corridor industrial areas have several access options. From the west traffic is channelled to Saskatchewan Avenue (PTH #1A) or River Road (PR 240). From Saskatchewan Avenue and River Road truck traffic proceeds through the Downtown and is routed north to the Industrial areas using either Eighth Street, Tupper Street or Third Street. Industrial traffic on these truck routes mixes with residential neighbourhood traffic on these same streets as well as residential traffic on the east/west oriented Fifth Street, located north of the Rail Yards. Recently access has been improved to the McMillan Industrial Park under a joint initiative by the two municipalities. This initiative encourages truck traffic destined to the 4-10

45 Industrial Park to pass around the City and enter east of the railway and PTH#1 overpass. Improvements involve the staged development of a new truck access route from PTH #1 east of the City s Saskatchewan East interchange. Improved access to the McMillan Industrial Park and Rail Yards may stimulate investment and ameliorate the impacts of truck traffic upon residential neighbourhoods and the Downtown. The location of both CN and CP railways, sharing the Portage Rail Yards, represents opportunity to explore the possible business potential. This may be possible from cooperative agreements between the railways in the development of an inter-modal truck rail freight container depot to serve the industrial uses attracted to the Planning District. To seek the co-operation of Manitoba Department of Transportation and Government Services, to examine the feasibility of developing a comprehensive transportation strategy to better integrate the roadways under the Department s jurisdiction, within the City of Portage la Prairie, to improve connections with the regional provincial road network..1 Guide industrial/business development so that it will contribute to the creation of competitive, attractive and highly functional industrial areas by: a) supporting the economic function of the industrial areas and amenity of adjacent areas; b) encourage clustering of economic activities within the industrial/business Areas to stimulate value added employment and assessment; c) minimize excessive movement of truck and vehicle traffic generated by industrial areas through adjacent areas; d) mitigate effects of noise, vibrations, dust, odours, or particulate matter that may be detrimental to other businesses or the amenity of neighbouring areas; and by e) treating the boundary between industrial areas and residential lands with landscaping, fencing or other measures to minimize nuisance impacts. 4.6 TRANSPORTATION Integrating City Land Use and Transportation The City s development areas are knitted together by the local and regional transportation network, the viability of which is crucial to support the growing 4-11

46 travel needs of residents and workers over the next 30 years. The key elements of the City s transportation network are: provincial highway connections to the larger region; railway corridor; community arterial roadways; and systems of pedestrian corridors including sidewalks, pathways and trails. The Plan protects the integrity of the local and regional transportation network and encourages improvements in the form of up-grading Provincial highway corridor connections with the City to improve the movement of traffic and interconnection within the community..1 The District Plan recognizes the importance of the City s transportation network and endeavours to maintain, develop and integrate the city and provincial transportation system, as illustrated on Reference Map 4 Existing City and Provincial Transportation Connections to support growth management objectives of this Plan by: a) initiating discussions with the Manitoba Infrastructure and Transportation to assess how to improve the integration, efficiency and safety of the Provincial highway system connections and routes through the community for the transport of goods, services and people; Transportation Agenda This Plan integrates transportation and land use at both the city and regional scales. Within the City, it is important for the Plan to address the differing transportation demands between areas targeted for growth and those other parts of the City where little physical change is foreseen. At the regional scale it is important for the City and Province to coordinate the inter-regional road connections with the development of the City. Consideration will be given to recommendations from various functional design studies such as PTH 1W Yellowquill Trail (Dec. 2005) The transportation maps of the Plan provide direction for inter-governmental collaboration on the protection and development of the City s road, transit and inter-regional network connections. 4-12

47 .1 The integrity of the existing and future regional provincial highway and City arterial transportation systems will be maintained by: a) consolidating access to provincial and City arterial routes at major points of entry; b) planning development in such a way to accommodate requirements for future highway and major roadway widening or extension; and c) co-operating with Manitoba Infrastructure and Transportation to maintain the safe and efficient operation of the provincial highway network connections with the City of Portage la Prairie by ensuring the inter-relationships between land use and transportation are addressed and if required mitigated as part of the development review and approval process..2 Better use will be encouraged to be made of off-street parking by encouraging the shared use of parking and developing parking standards for mixed use developments, which reflect the potential for shared parking among uses that have different peaking characteristics;.3 An urban environment and infrastructure will be created that encourages and supports walking throughout the City, through policies and practices that ensure safe, direct, comfortable, attractive and convenient pedestrian conditions, including safe walking routes to schools;.4 The transportation system will be developed to be inclusive of the needs of people with disabilities and seniors by: a) requiring a minimum of off-street parking spaces for the disabled; and b) taking accessibility into account when design considerations are given to public facilities. 4.7 PUBLIC SPACES The Natural Environment Strong communities and a competitive economy need a healthy natural environment. Clean air, soil and water and abundant trees, parks and open spaces underlie health and wellbeing and attract people to work and invest in the community. Developing the Portage la Prairie Planning District, while 4-13

48 protecting and enhancing the natural environment, is the aim of good stewardship. The natural environment is complex. It does not recognize boundaries and there are limits to the stresses resulting from human activity that it can absorb. To be good stewards of the natural environment, we must acknowledge that it has no boundaries and we must respect its limits..1 To support a strong community, a competitive economy and a high quality of life by ensuring proposals including public and private building activities and changes to the built environment will be environmentally friendly, based on: a) protecting and improving the health of the natural ecosystem, by: i) minimizing air, soil and water pollution; and ii) mitigating unacceptable effects of noise. b) maintaining and improving the health and integrity of the natural ecosystem and supporting bio-diversity in the Portage la Prairie Planning District by paying particular attention to: i) habitat for native flora and fauna and aquatic species; ii) water and sediment quality; iii) landforms, watercourses, wetlands and the shoreline and associated biophysical processes adjacent to Crescent Lake; and iv) natural linkages between natural ecological areas such as Garrioch Creek Park and other green spaces. c) recognizing environmental stresses caused by the consumption of natural resources, by encouraging reductions in: i) the amount of solid waste requiring disposal in landfill; and ii) consumption of water and generation of wastewater. d) preserving and enhancing the urban forest by: i) providing suitable environments for trees; and ii) increasing tree canopy coverage and species diversity; e) reducing the risks to life, health, safety, property and ecosystem health, that are associated with flooding, unstable slopes, erosion and contaminated lands; and f) reducing the adverse effects of storm water and snow melt, based on a hierarchy of wet weather flow practices, starting with at-source, then conveyance and finally, end-of-pipe solutions..2 Where feasible, new development will include on-site facilities to manage storm water, rain and snow fall; 4-14

49 .3 Some utilities or services may be located within or across the flood plain, including: a) transportation and above ground utilities, which may be permitted only to cross the flood plain; and b) underground utilities, flood or erosion control, storm water management and conservation The City Green Spaces The relationship between the built and natural environments has a significant role in defining the character and quality of a community. They are experienced by the visual and physical linkages that permit people to interact and move through spaces as illustrated in Reference Map 5 - City Green Spaces..1 Green Spaces support the quality of the community by linking parks and open spaces through initiatives by: a) acquiring such linkages where feasible; b) acquiring lands, or easements over lands, associated with private development, which can be connected to the City Green Spaces for the extension of recreational trails, or which may add important natural heritage value to the City Green Spaces..2 To increase public enjoyment and use of the City Green Spaces using the following objectives as a guide: a) minimize physical and visual barriers between the City s neighbourhoods, downtown, Republic of Manitobah Park, Island Park and Crescent Lake; b) consider the importance of inter-community access and connections between Crescent Lake, Republic of Manitobah Park, city neighbourhoods and the downtown c) consider the importance of parks, public squares and natural settings; d) increase the availability, choice and awareness of recreational opportunities and public activities through the year; and e) protect, improve and where possible, extend the community trail system as a continuous system creating a downtown and 4-15

50 inter-neighbourhood route for cyclists, pedestrians and people with disabilities..3 Private development and public works on lands adjacent to Crescent Lake or in its vicinity will be encouraged to: a) improve public spaces along the water s edge; and b) maintain and increase opportunities for public views of the water, and c) maintain riparian vegetation, should not contribute to shoreline erosion and should not impair water quality Parks and Open Spaces.1 The City of Portage la Prairie system of parks and open spaces will continue to be an important element of neighbourhood building as the City grows and changes. Maintaining, enhancing and expanding the system will be encouraged through the following actions: a) consider adding new parks and amenities, particularly in growth areas and in existing neighbourhoods. Continue to maintain, improve and expand existing parks as may be determined by the City as part of its on-going review of neighbourhood open spaces and facilities; b) designing parks and their unique facilities and amenities to promote user comfort, safety, accessibility and year-round use and to enhance the experience of place, providing experiential and educational opportunities to interact with the natural world; c) protecting access to existing publicly accessible open spaces, as well as expanding the system of open spaces and developing open space linkages; and d) promoting and using private open space and recreation facilities to supplement the Planning District and its Partner s parks, facilities and amenities..2 All development will be subject to the dedication of lands and/or cash for parks purposes as determined by City Council..3 Parkland acquisition strategies, including decisions about whether to accept parkland or cash as a condition of development, will take into account, a range of factors: a) amount of existing parkland; b) parkland characteristics and quality; 4-16

51 c) existing natural features of the site; d) existing amenities and facilities; e) population growth, demographic and social characteristics; f) anticipated development; g) amount of publicly accessible open space; h) opportunities to link parks and open spaces; i) urban form; and j) land availability and cost..4 Endeavour to minimize the effects of development from adjacent properties, including noise and traffic impacts on parks and open spaces..5 An alternative parkland dedication rate with an equivalent value of cash-in-lieu may be applied to proposals where the payment of cashin-lieu of land is conveyed through the alternative rate provision and will be used to acquire parkland that is accessible to the area in which the development is located, or to improve parks in the vicinity of the development..6 The location and configuration of land to be conveyed, should meet all of the following criteria: a) be free of encumbrances; b) be sufficiently visible and accessible from adjacent public streets to promote the safe use of the park; c) be of a usable shape, topography and size that reflects its intended use; and d) be consolidated or linked with an existing or proposed park or green space or natural heritage system, where possible Public Places Beautiful, comfortable, safe and accessible streets, parks, open spaces and public buildings, are a key shared asset. These public spaces draw people together, creating strong social bonds at the neighbourhood, City and regional level. They convey public image to the world and unite us as a community. They set the stage for festivals, parades and civic life, as well as for daily casual contact. Public space creates communities..1 Quality architecture, landscape and urban design will be promoted by encouraging the creation and maintenance of high quality public buildings, structures, streetscapes and parks that reflect the broad objectives of this Plan; 4-17

52 .2 Creativity and excellence in architecture, landscape and urban design will be encouraged in private developments;.3 Streets are a significant public open space that serve pedestrian and vehicles, provide space for public utilities and services, building access, amenities such as view corridors and public gathering places. Streets will be designed to perform their diverse roles, balancing the spatial needs of existing and future users within the right-of-way. This includes pedestrians, people with mobility aids, transit, bicycles, automobiles, utilities and landscaping;.4 The design of sidewalks and boulevards are to provide safe, attractive, interesting and comfortable spaces for pedestrians, by providing well designed landscaping and coordinating tree planting with pedestrian-scale lighting, quality street furnishings and decorative paving, as part of street improvements within the Downtown;.5 Routes with scenic views of important natural or human-made features, should be preserved and where possible, improved by maintaining views and vistas as new development occurs;.6 Public works and private development will maintain, frame and (where possible) create site lines to important natural and humanmade features;.7 Considerations given in the location and design of public buildings include promoting their public status on prominent, visible and accessible sites, including street intersections and sites that end a street view, or face an important natural/cultural feature. The design of open space associated with public buildings, will endeavour to enhance the quality of the setting for the building and support a variety of public functions associated with its program;.8 Universal physical access will be encouraged to publicly accessible spaces and buildings..9 Design measures which promote pedestrian safety and security will be applied to streetscapes, parks, and other public and private open spaces and all new and renovated buildings;.10 The design of new streets to: a) provide connections with adjacent neighbourhoods and promote a connected grid of streets that offers travel options and extends sight lines; 4-18

53 b) divide larger sites into smaller development blocks; c) create adequate space for pedestrians, bicycles and landscaping, as well as vehicles, utilities and utility maintenance; d) improve the visibility, access and prominence of unique natural and human-made features; and e) provide access for emergency vehicles..11 New block development and lots within them may be designed to: a) have an appropriate size and configuration for the proposed land use, scale of development and intended form of buildings and open space; b) promote street-oriented development with buildings fronting onto street and park edges; c) provide adequate room within the block for parking and servicing needs; and d) allow for incremental, phased development..12 New parks and open spaces may be located and designed to: a) connect and extend wherever possible, to existing parks, natural areas and other open spaces; b) provide a comfortable setting for community events, as well as individual use; c) provide appropriate space and layout for recreational needs; and d) emphasize and improve unique aspects of the community s natural and human-made heritage..13 New parks and other public open spaces should front onto a street for good visibility, access and safety. 4.8 URBAN EXPANSION The process of managing urban development within the City of Portage la Prairie will require a strategic approach. It will build upon community infrastructure and economic potential of the City and region to attract development. The Development Plan sets out policies to guide the use of lands within the immediately foreseeable future. Policy maps designate lands for development based upon the expectations of growth demands over the planning timeframe. A need has been recognized for a new urban land use category to be applied to strategically located lands that will in the future become urban in use. This new urban land use category will be applied to selected lands where projected demand or opportunities for extension of services and conversion to urban uses are anticipated to occur outside the timeframe contemplated in the Plan. The future urban nature of these lands will be confirmed by the policy designation as an Urban Hold Area and 4-19

54 their development will be based upon phased extension of urban services as defined by detailed development strategies. Recognizing the purpose of Plans is to anticipate the likelihood of change and endeavour to manage the process of change; tools are required to guide the planning of infrastructure and future land use relationships. The Portage la Prairie Planning District Development Plan serves this need by introducing the policy concept of an Urban Hold Area. The purpose of this planning designation is to confirm the intended future urban use of strategic but unserviced lands. Policies under this concept will manage the conversion of agricultural or rural open space uses to urban uses. Urban Hold Area will be zoned for compatible agricultural or rural open space uses until such time as community development needs require the extension of infrastructure services and planned expansion of the urban area Urban Hold Areas.1 Within the City of Portage la Prairie future development of strategically located, unserviced lands will be confirmed as urban in form by designation as Urban Hold Area..2 Unserviced lands located within an Urban Hold Area may be designated in the Municipal Zoning By-law as either Limited Agriculture or Open Space..3 Under the Urban Hold Area policy the conversion of unserviced rural lands to serviced urban uses will require: a) an Urban Expansion Development Strategy illustrating the types, distribution, relationships and organization of urban land uses to be established within the planned Urban Hold Area and how they will be phased and integrated with the development of the City of Portage la Prairie s urban area; b) completion of an Urban Service Strategy to guide the efficient extension of transportation, water, waste-water sewer and land drainage services; c) coordination of a community stakeholder and provincial agency review of the proposed Urban Expansion Development Strategy and Urban Service Strategy by the City; and d) approval of a map amendment to the Municipal Zoning By- Law supported by the completion and City approval of the Urban Expansion Development Strategy and Urban Servicing Strategy for the lands to be converted from unserviced rural uses to serviced urban uses. 4-20

55 4.9 LIVESTOCK OPERATIONS New or expanding livestock operations will be prohibited in the City of Portage la Prairie and provincial minimum mutual separation distances must be met between livestock operations and the City of Portage la Prairie. Refer to Section [AM.B/L # ] 4-21

56 5. URBAN RURAL FRINGE policies In the Urban Rural Fringe one finds a variety of land uses including: farms, flying club landing field, river lots, rural residential development and businesses. This mixture of uses distinguishes this part of the District as a transition area from urban uses to large defined areas of agricultural land uses. The Urban-Rural Fringe has, in recent decades, been the subject of increasing pressure to accommodate people who choose not to live in the District s villages or urban areas. It is important in the Urban-Rural Fringe to manage land uses carefully as non-farm land uses do not always mix with conventional agricultural or urban uses. Sometimes fringe development competes with urban development and may represent the premature urbanization of land prior to the extension of urban services. Often is the case, when this occurs, the future extension of urban services may not always be accomplished in an economically or technically efficient manner. The consequences may entail land use servicing costs which are disproportionately higher and cannot be supported by the pre-mature development of the urbanrural fringe without subsidy. Urban-Rural Fringe Policy applications are illustrated on Policy Map #2 Urban Rural Fringe Land Use Policy Areas. 5.1 Urban-Rural Fringe Areas The Urban Rural Fringe Land Use Policy Areas are subject to the Rural Area Transportation Policies of the Plan in Sub-Section Rural Residential.1 Within the City of Portage la Prairie future development of unserviced or partially serviced lands will be based upon limited urban infrastructure and will not be developed for uses typically more appropriately located in a fully serviced urban setting..2 Lands west of PR# 240 within boundary of City of Portage la Prairie: Limited large lot rural residential use may be considered provided City Council is satisfied that existing rural access, continuation of private services and provision of limited urban infrastructure will not add to the servicing or maintenance expenses of the City of Portage la Prairie, the Portage la Prairie School Division or reduce the functionality of the Provincial road network. 5-1

57 .3 Island Park: Existing non-serviced areas may be considered for limited large lot rural residential use provided the existing bridge access to the Island and continuation of private sewer and water services can sustain the use and further residential development can be accommodated without adding to the service and maintenance expenses of the City of Portage la Prairie and School Division..4 The location of lands within the boundaries of the City of Portage la Prairie designated Rural Residential under this policy are not contemplated under the Plan to be urban in form or serviced with a full range of urban infrastructure services..5 Within the Rural Municipality of Portage la Prairie Urban-Rural Fringe refer to policies & [AM.B/L # ].6 Mobile Home in the Rural Municipality of Portage la Prairie Urban- Rural Fringe refer to policies , & [AM.B/L # ] Agriculture.1 Lands may be maintained as their present agricultural use. Residential development may only occur on existing lots of record which comply with zoning regulations..2 Island Park Agricultural: Agricultural lands may be maintained for continued agricultural crop production use. Residential development in this area is not permitted..3 New or expanding livestock operations will be prohibited in the Urban-Rural Fringe Area identified in Schedule D of Development Plan Amendment and provincial minimum mutual separation distances must be met between livestock operations and the Urban-Rural Fringe Area. Refer to Section [AM.B/L # ] 5-2

58 5.1.3 Peony Farm Residential Area.1 Due to varying water quality problems in existing domestic wells, new unserviced residential use of lands will not be encouraged in the Rural Municipality of Portage la Prairie subdivision called the Peony Farm. Residential infill development will only be permitted in this location subject to a satisfactory servicing agreement providing for the extension of City of Portage la Prairie sewer and water services Commercial Policy Area.1 Lands may be maintained as their present agricultural use. Residential development may only occur on existing lots of record which comply with zoning regulations. Commercial, Industrial, Institutional and Open Space are permitted in this area..2 Land designated Commercial Policy Area west of the City on the north side of P.T.H. No. 1 shall not be rezoned or developed until a mutually agreeable solution with Manitoba Infrastructure and Transportation regarding use of the Road 40/P.T.H. No. 1 intersection has been reached. 5-3

59 6. RURAL LAnd use policies 6.1 INTRODUCTION The long term health of the Portage la Prairie Planning District s agricultural sector and economy will be one of the keys to sustaining a viable agri-food industry in the region. The pace of change within Manitoba s and the District s agricultural economy has created concerns about readiness to manage the structural changes in rural Manitoba and to improve the long range social, economic and environmental conditions within the Planning District. The s rural strategy builds foundations for sustainable agriculture and a healthy community economy by assisting agricultural producers to make decisions in the context of land resource quality, environmental conditions, adjacent land uses and relationships with other land owners. Rural Land Use Policy Areas are illustrated in Policy Map 3. In addition to the general objectives and policies of Part 2 and the urban-rural fringe policies of Part 5 of the District Development Plan, this section of the Plan outlines additional objectives and policies for rural areas within the Planning District. Rural areas are differentiated from urban areas by less dense development and larger land parcels, with agricultural activities as dominant land uses. It is understood that rural areas depend on urban areas for a range of commercial and public services and facilities. 6.2 RURAL OBJECTIVES.1 Encourage economic agricultural development and diversification in rural areas in an orderly, efficient manner that will sustain a viable agri-food industry in the Portage la Prairie Planning District..2 Encourage agricultural development and growth which is sustainable and efficiently uses land and existing road networks..3 Promote new developments in rural areas which are compatible with agricultural land uses and the objectives and policies of urban areas when located in the rural fringe of designated settlement centers..4 Maintain the rural character and quality of life by pursuing sustainable development to meet the needs of today without compromising the ability of future residents from meeting their needs. 6-1

60 .5 Zoning by-laws will provide mutual setback buffers between livestock operations, non-farm uses and residential areas. The setbacks may vary, depending upon density of residential use, size of community, nature and intensity of livestock operation. [AM.B/L # ] 6.3 RURAL DEVELOPMENT GENERAL POLICIES.1 Agriculture is to be given priority in the Rural Policy Area. Land uses that may also be accommodated in the Rural Policy Area could include: extensive outdoor recreation, agro-commercial, agroindustrial, and other commercial and industrial uses that: a) cannot be accommodated in the: (i) Poplar Bluff Industrial Park (ii) (iii) Commercial Policy Area in the Urban-Rural Fringe Urban Areas due to the need for quantities of land not available in an urban centre b) are of a hazardous nature or are a potential nuisance c) need to provide essential services to highway uses or d) need to be near a specific resource..2 New non-farm developments should be directed away from prime agricultural land, viable lower class agricultural lands and livestock operations. The quality of the District s agricultural soils for crop production is illustrated in Reference Map 6 Agricultural Capability. [AM.B/L # ].3 New developments in rural areas should be located to be compatible with existing or potential resource extraction or harvesting..4 Support the vitality and sustainability of serviced rural communities by consolidating rural non-farm development within designated communities and by supporting the maintenance and development of infrastructure services required to support the population and land uses attracted to rural communities..5 Protect the dominant role of agriculture and promote a full range of agricultural development in ways compatible with the environmental capacities of land and water resources and adjacent land uses..6 Encourage sustainable development in rural areas where development impacts will not lead to injurious effects or threaten the ecological integrity and function of designated natural areas or sensitive/critical wildlife habitat. 6-2

61 6.4 RURAL DEVELOPMENT Agriculture.1 Prime agricultural lands should not be developed for nonagricultural uses, unless there is no suitable alternate site capable of serving the proposed use or if the development at the selected location meets an important public need. (Note: The Planning District will incorporate nutrient management zones into the Development Plan once they have been developed)..2 Areas should be preserved for a full range of agricultural activities on prime agricultural land, and where agriculture is the dominant activity on lower class land and where it is desirable and feasible to provide protection to such activities..3 Prime and viable lower class agricultural lands should be protected from fragmentation into smaller parcels..4 Proposed or existing small land holdings for small - scale or specialized agricultural operations may be considered for approval, provided that such proposals are compatible with other existing agricultural operations, and that the size of the proposed parcel is appropriate for the intended use. The proponent needs to also demonstrate the reasonable steps, in the form of a business plan or financial arrangements, have been taken toward establishing the operations..5 Existing agricultural enterprises which operate within generally accepted practices of farm management and in conformance with Provincial regulations should be protected from new development which might unduly interfere with their continued operation..6 To foster sustainable development in agriculture by encouraging the protection, development, use and management of prime agriculture lands and viable lower class lands for agriculture production, diversification and value added agriculture activities. 6-3

62 6.4.2 Livestock Operations Livestock Production [AM.B/L # ] Sustainable agricultural practices place increasing responsibilities upon farmers and the Province to address public concerns over livestock management and environmental protection. Farmers are asked to assume more responsibilities including public relations with neighbours to gain acceptance and understanding of operations and more direct responsibility for environmental stewardship. Much of the community s concerns over livestock management relate to limited public information on how best practices will be specifically applied to local conditions. Manitoba Water Protection Act of 2005 creates a framework for improved water management and protection in Manitoba. The first regulation proposed under the new act will be the definition of land-based Water Quality Management Zones for Nutrients. Nutrient management standards may assist the Planning District to ensure rural land use decisions by the Municipality and agricultural operating practices regulated by the province are sensitive to environmental tolerance of the Water Quality Management Zones. The benefit of this co-ordination will be to ensure the capabilities of the various soil groups to utilize nutrients can be sustained with minimal risk of leaching, surface runoff or of degrading of soils, ground and surface water quality within the Planning District and neighbouring areas. Development Plan Reference Map 7 Water Quality Management Zones for Nutrients identifies the location of nutrient management zones associated with the various soil resources within the Planning District. The nutrient management zones reflect current research on the capacity of different soil characteristics to incorporate nutrients and assess the risk of nutrient loss to leaching or surface run-off..1 The Planning District Board will consider the incorporating of nutrient management zones into its decision processes on the siting of livestock operations once they have been developed by the province and their application reviewed with the District s rural stakeholders. [AM.B/L # ].2 Proponents and operators of livestock operations will be required to develop facilities and conduct their operations in a manner which reduces the production of offensive odours and the potential for pollution of soils, groundwater and surface water. [AM.B/L # ].3 Livestock will be required to locate in areas of the District designated as Agricultural and Rural Agricultural Policy Areas on sites where they will be compatible with surrounding land uses Livestock 6-4

63 Operations uses are defined as a permanent or semi-permanent facility on non-grazing area where at least 10 animal units of livestock are kept or raised either indoors or outdoors, and includes all associated manure collection facilities, but does not include an auction mart. [AM.B/L # ] [AM.B/L # ].4 Zoning By-law will contain mutual separation distance requirements in keeping with the siting and set back standards for livestock operations established in the Provincial Land Use Policies. [AM.B/L # ].5 The Planning District Board will amend its development plan to include a livestock policy that complies with the Planning Act. [AM.B/L # ].1 A Livestock Operation will be considered any permanent or semipermanent facility or non-grazing area where at least 10 animal units of livestock are kept or raised either indoors or outdoors, and includes all associated manure storage facilities (i.e. lagoons). This includes any high-density seasonal feeding areas where manure build-up may occur such that mechanical removal and spreading of the manure may be required (including an over-wintering confined site for a cow-calf operation). This does not include a grazing area (pasture or rangeland) where livestock are primarily sustained by direct consumption of feed grown on the area. Livestock operations will be characterized by the total number of animal units (AU). [AM.B/L # ].2 Two or more existing or proposed livestock operations involving the same category of livestock are deemed to be considered a single livestock operation if they are: a) located within 800 metres of one another; and b) owned by: i. the same individual, corporation, partnership or other entity, or ii. Individuals, corporations, partnerships or other entities that are interrelated to the degree prescribed by regulation [AM.B/L # ].3 The Rural Municipality of Portage la Prairie Zoning By-Law shall adopt the provincial minimum mutual separation distances between livestock operations and: residences not related to the operation; non-farm residential subdivisions; and 6-5

64 Designated Southport Aerospace Planning Area, Designated Rural Settlement Centres, Limited Service Centres, Rural Residential Areas and Mobile Home Areas [AM.B/L # ].4 Mutual separation distances will be maintained between existing, expanding or proposed livestock operations and non-farm residential developments. However, applications to vary such distances may be considered by Council as per the Planning Act..5 New or expanding livestock operations are deemed to be a conditional use if they produce more than 60 animal units..6 Council must refer all applications involving 300 or more animal units to the Minister and request that a Technical Review Committee be appointed to review the proposed application..7 New or expanding livestock operations shall be prohibited on lands with a soil suitability rating of Class 6, Class 7 or unimproved organic land based on a detailed soil survey. Lands with a soil capability rating of Class 6 may be used for grazing and/or haying and shall be consistent with the carrying capacity of the land..8 If detailed soil survey information is not available for the area in which a new or expanded livestock operation is proposed, Council may require a detailed soil survey for the site acceptable to the Province at a scale of 1:50,000 or better..9 New or expanding livestock operations will be encouraged to locate where they will be compatible with surrounding land uses and not pose a pollution risk to soils, groundwater or surface water..10 New or expanding livestock operations should not be located in riparian zones, groundwater vulnerability areas identified by the province or in close proximity to urban area water supplies..11 New or expanding livestock operations will be prohibited in Wildlife Management Areas and all areas with non-agricultural designations..12 On sites where the Province has identified a potential risk of pollution of soils, groundwater and/or surface water, new or expanding livestock operations may be required to incorporate measures that will reduce the risk to acceptable levels. 6-6

65 .13 Council may require an owner of a new or expanding livestock operation to enter into a development agreement regarding items specified in The Planning Act..14 No development of a new or expanding livestock operation shall take place until all approvals are obtained as required in The Planning Act, The Environment Act or any other Act establishing rules and/or regulations pertaining to livestock..15 New or expanding Livestock Operations proposed within 1 kilometre of the Provincial Highway System will be subject to a review by the Provincial Ministry responsible for transportation..16 Unless otherwise provided within the Development Plan, Livestock operations of any size will only be considered in the designated Agricultural Policy Areas Rural Non-Farm Residential Development The Assiniboine River and proximity to the provincial highway network has attracted some interest in lands for use as rural residential development served by the region s rural water supply system and mobile home community development. Although residential development in the rural areas of the District will generally be encouraged to locate in designated rural urban centers, the District Board recognizes a rural lifestyle on private services is attractive to some people and will consider accommodating rural residential development subject to the policies in this section. The District Board recognizes that Mobile Home communities extend the diversity and housing choices available in the District. Mobile Home communities are typically urban in character and density supported by urban infrastructure services supplied either as part of a condominium community or as a service where the mobile home is located within a mobile home park that rents out serviced sites. The following polices apply to Rural Policy Areas identified on Rural Land Use Policy Map 3. Rural Residential.1 New rural residential lot development will be carefully regulated in the R.M of Portage la Prairie and within the designated Urban- Rural Fringe area of the City of Portage la Prairie. If the Council and District Board determine the proposed location of rural residential lot development may impede future growth of the urban area or be a transitional use possibly requiring the future extension of urban services or conflict with the agricultural uses, new rural residential lot development will not be permitted. 6-7

66 .2 Generally, rural residential developments are not considered appropriate land uses in rural agricultural areas. Rural Residential Areas are designated by the District Development Plan s Policy Map 3. Rural Residential development may be maintained, and new rural residential development in designated Rural Residential Areas may be considered under the municipal zoning by-law, if in the opinion of Council the siting of the rural residential development within the designated Rural Residential Areas is considered to be compatible with adjoining agricultural uses and can be sustained by the environmental capacity of the site to support development. Rural residential land uses will require sustainable lot sizes and locations for the provision of private waste water treatment. Consideration of additional rural residential development in designated areas will be managed by the development approval process and zoning by-law so as to not also adversely impact the efficient provision of municipal and school services. [AM.B/L # ].3 Generally, land division of farmsteads should not include cultivated lands, be confined to a defined shelter-belt, be located along an existing all-weather road, serviced to a rural standard, and is not subject to flooding or erosion..4 Where new residential development proposes on-site wastewater management systems, it must be approved by Manitoba Conservation prior to installation. The location and size of building lots should reflect the capability of local soils to adequately support an approved on-site wastewater management system..5 The subdivision of land for residential purposes in agricultural or mineral potential areas is generally not permitted, but may be considered in the zoning by-law as a conditional use or permitted use as defined in the zoning by-law in the following circumstances: Permitted Uses: a) a retiring farmer who wishes to retain the farm residence. b) where a farm is incorporated and it is necessary to establish a separate residential site from the farm corporation. c) where a residence is required for a family member actively involved in the farming operation. Actively involved is defined as having significant and ongoing participation in the farming operation. 6-8

67 d) a bona fide farmstead site (5 years old or more) is rendered surplus due to farm consolidation or amalgamation where the continued existence of the surplus farmstead will not have a negative impact on adjacent agricultural operations and where the farmstead contains a liveable farm residence located within a well-defined yard site and the site is not larger than required to meet the needs of a non-farm residential lot. Conditional Uses: e) abandoned farmstead sites as of the date of the adoption of this development plan and as defined in the Municipal zoning by-law and subject to policy sub-section f) i and ii below. f) small parcels of land that are isolated by natural or manmade barriers including waterways, drains, roads, railways or similar barriers and are difficult to farm because of size or shape, may be subdivided for non-farm residential purposes provided they: i. will not have a negative impact on adjacent land uses; ii. meet mutual separation distances from livestock operations; [AM.B/L # ] comply with the Rural Municipality of Portage la Prairie Zoning By-law minimum mutual separation distances between livestock operations and: residences not related to the operation; non-farm residential subdivisions; and designated Southport Aerospace Planning Area, Designated Rural Settlement Centres, Limited Service Centres, Rural Residential Areas and Mobile Home Areas [AM.B/L # ] iii. residual parcel size meets minimum in the Zoning By-Law; iv. re-subdivision of isolated parcels will not be allowed. g) Existing residential lots within land designated as Agricultural that do not require additional direct access to the Provincial Highway System, may be further subdivided into no more than one additional residential lot with the second lot being wholly contained within the existing residential lot, provided that each resulting parcel: i) will not have a negative impact on adjacent land uses; ii) will comply with the Rural Municipality of Portage la Prairie Zoning By-law minimum mutual separation distances between livestock operations; 6-9

68 iii) Generally has a maximum site area of ten (10) acres, a minimum site area of two (2) acres and a minimum site width of 200 feet. In addition, other adjacent parcels should be consolidated where possible. After subdivision of the residential lots occur, into no more than two (2) residential lots, no further subdivision will be permitted. [AM.B/L # ] Mobile Home Residential.6 Generally, Mobile Home communities are not considered appropriate land uses in rural agricultural areas and will be encouraged to be located within the City of Portage la Prairie, Oakville or the designated rural settlement Centers under the Development Plan. No new mobile home designations will be considered in the future. [AM.B/L # ].7 The District s two existing rural Mobile Home communities may be maintained and expansion of mobile home lots within these designated Mobile Home Communities may be considered if in the opinion of Council, the expansion of the existing Mobile Home Community: i) will not have a negative impact on adjoining agricultural uses; ii) can be sustainable by the environmental capacity of the site to support development; and iii) where required water, waste water, land drainage, road ways, recreation areas and related community services are adequate to accommodate additional mobile home residential development..8 Consideration of mobile home development in designated areas will be managed by the development approval process and zoning by-law so as to not adversely impact the efficient provision of municipal and school services and to maintain compatibility with agriculture uses. 6.5 DESIGNATED RURAL SETTLEMENT CENTERS The process of managing development and change will be different among the Portage la Prairie Planning District s communities, because some areas will have greater or lesser potential to attract and accommodate development. Communities which may have traditionally competed for development will need to look to new models of inter-community co-operation to be successful in attracting economic and population growth to the District. The Designated Rural Settlement Areas are illustrated on Policy Map 3 Rural Land Use 6-10

69 Policy Areas and for Oakville on Policy Map 4 Oakville Land Use Policy Areas. In addition to the general objectives and policies of Part 2, this section of the Development Plan outlines additional objectives and policies for rural settlement centers within the Planning District. There are two distinct types of rural settlement centers within the District. The unincorporated, serviced community of Oakville is differentiated from the District s other rural settlements by its larger population, development density and smaller lots which allow for the provision of municipal services (e.g. piped water and sewer) in a more efficient and economic manner. The other rural settlement centers of St. Ambroise, Newton, Delta Beach, Poplar Point, High Bluff and Macdonald have experienced declining populations and due to their smaller populations have access to limited municipal sewer or water services or are reliant upon the provision of private services Rural Settlement Centers Oakville Rural Settlement Center and Limited Service Rural Settlement Center General.1 To designate Oakville as the District s Rural Settlement Center and to pursue initiatives to sustain and strengthen Oakville by encouraging community investment, job creation, economic growth and population retention..2 To encourage development and growth of Oakville in a manner which efficiently uses land, infrastructure and public services..3 To provide a range of commercial, industrial, recreational and community facilities and services to the residents of Oakville..4 To promote development, which is compatible with adjacent land uses, both existing and anticipated..5 To encourage growth and development of Oakville, in a manner, which is compatible with the objectives and policies for rural urban areas..6 To encourage and create employment opportunities and other reasons for young adults to stay in the community..7 To support and encourage local investment in community business development by promoting the benefits within the community of shopping locally and by supporting a joint marketing campaign promoting the lifestyle of Oakville. 6-11

70 .8 To improve marketing and encourage partnerships among community interest groups and businesses to promote the District s cultural, heritage and recreational assets in Oakville..9 To designate St. Ambroise, Newton, Delta Beach, Poplar Point, High Bluff and Macdonald as Limited Service Rural Settlement Centers and to pursue a policy of sustaining these communities, based upon the provision of limited municipal services Managing Development in Oakville Rural Settlement Center and Limited Service Rural Settlement Centers.1 In general, urban-like uses such as commercial, industrial, indoor recreational, intensive outdoor recreational, institutional, public and small lot serviced residential uses should be directed to Oakville..2 Oakville will be encouraged to provide for an appropriate mix of residential, commercial, institutional, recreational, industrial and public uses in quantities reasonably related to demand..3 Proposed developments in Oakville Rural Settlement Center and in designated Limited Service Rural Settlement Centers should take into account the health, safety and general welfare of the residents, and the viability and character of the community..4 Those uses or activities, which are permitted in Oakville Rural Settlement Center and the designated Limited Service Rural Settlement Centers, should be located so as to be compatible with other existing or proposed uses..5 Infill and revitalization of existing built-up areas should be encouraged as a means to accommodate new development..6 Expansion should be directed away from prime agricultural land. Mutual separation distances between livestock operations and other designated areas will be established in the zoning by-law to avoid incompatibilities among land uses. [AM.B/L # ].7 Where suitable vacant land is not available, new development should be encouraged to locate adjacent to built-up areas where public services, including roads, water and sewer services, power lines and other services can be efficiently and economically expanded. 6-12

71 .8 Lot sizes and densities should be governed by the limitations of existing sewer and water services within Oakville and private services within Limited Service Rural Settlement Centers: a) where no existing piped services are available within the community, lot sizes should be sufficiently large to minimize the risk of contamination of private wells, and to allow for the installation of suitable types of sustainable on-site wastewater management systems in accordance with Environment Act regulations; b) where piped services are available, lot sizes may be smaller to provide for a higher density of development, and thus more efficient operation of piped services; and c) in the case of commercial and industrial developments, lot sizes should be large enough to provide adequate space for the needs of the development, particularly with respect to exterior display, storage and service areas. However, lot sizes should not be so large that they are wasteful of land..9 Within Oakville, where larger parcels of undeveloped lands are being considered for future community development, an overall concept plan, pursuant to Section 3.2.4, should be prepared for the area in order to provide for the efficient extension of sewer, water, roadway and land drainage services, well-planned development neighbourhood housing and open space systems. The concept plan should illustrate the general arrangement of future roadways, building lots, open spaces, piped services, area drainage, and other major features. The design of the roadways, piped services and building lots should be integrated with existing roadways and services, and should generally conform to recognized engineering and planning standards..10 Where a developer is proposing new development, the Council should specify the standards for new infrastructure (such as roadways or piped services), and may, in its discretion, require the proponent to contribute towards the cost of establishing new infrastructure that may be needed to adequately service the new development. 6-13

72 6.5.3 Piped Water & Sewer Services.1 Where the municipality provides water and sewer services within a developed area, new developments shall be required to connect to these services at the time of development..2 Where new water or sewer systems are provided within existing developed areas, existing development shall be required to connect to these systems within time frames established by Council Vehicle Traffic.1 Commercial and other types of potentially high traffic developments should be located within Oakville along major roadways, away from areas where traffic would create incompatibilities with surrounding land uses, create health or safety hazards, or cause excessive wear and tear on road networks..2 Commercial uses which primarily serve the traveling public should be encouraged to locate at planned locations with access to major roadways and Provincial highways, subject to the approval of the highway authority..3 Land uses and developments that have potential to generate significant truck traffic should be encouraged to locate at planned locations with access to major roadways and Provincial highways, subject to the approval of the highway authority Residential Development.1 Development of a variety of housing types should be encouraged in the Oakville Rural Settlement Center (e.g. single-family, multifamily, seniors, and special needs) in response to demand and where suitable services and infrastructure are available or can be provided..2 Residential developments should be located to avoid potential conflicts with other incompatible uses (e.g. industrial uses which generate noise, dust, odours, heavy traffic and other potential nuisance; sewage lagoons; waste disposal sites; highways and rail lines). 6-14

73 .3 Residential developments will be encouraged to locate in proximity to complementary public uses (e.g. recreation facilities, parks, and libraries), institutional uses (e.g. schools) and commercial uses..4 Multi-family housing projects or seniors housing projects will be encouraged to locate in close proximity to important community services such as central commercial areas Commercial Development.1 Commercial developments will be directed to locations within the Oakville Rural Settlement Center and existing designated Limited Service Rural Settlement Centers..2 The central commercial area of the Oakville Rural Settlement Center should be promoted as the principal location for specialized retail, professional offices, financial institutions, as well as government offices, cultural and indoor recreational amenities..3 To strengthen central commercial areas higher density development, revitalization of existing buildings, infrastructure upgrading and landscaping programs will be encouraged..4 Commercial developments with extensive site requirements, such as outdoor storage, display, parking requirements (i.e. large trucks), will be encouraged to locate at appropriate locations outside of the central commercial area, or on vacant areas adjacent to railways in the central area of the urban area, provided that it is compatible with existing uses Industrial Development.1 Industrial uses which may be incompatible with other uses or which may pose a significant risk to public health and safety or may generate heavy truck traffic will be directed to suitable locations in the rural settlement centers. If a suitable industrial site is not available, a location in the rural area may be considered..2 New developments which could be incompatible with industrial uses should be directed away from areas where industrial uses occur or are anticipated to occur. 6-15

74 .3 Industrial uses which are likely to be unsightly due to the nature of the industrial operations, exterior storage, or type of building or structures, should generally be discouraged from locating along the highway approaches and entrance roadways to urban areas. If such uses are proposed in these areas, special landscape buffer or other mitigation measures should be taken to screen these industrial uses from view Institutional, Recreational and Cultural Development.1 In order to strengthen and diversify existing settlement areas, the development of institutional, recreational or cultural facilities, should be encouraged at appropriate locations designated in Oakville, under Policy Map 4, as Residential or Commercial policy areas, where services can be shared or have opportunity for joint use development agreements. Locations should be selected which can be adequately serviced and which will be reasonably compatible with other nearby developments Restricted Development Areas.1 In order to minimize human exposure to the undesirable effects of such uses as sewage lagoons and waste disposal sites, development in the vicinity of these facilities should be limited to developments such as industrial or limited agriculture uses which would not be adversely affected by these facilities, unless it can be demonstrated that these effects can be reasonably mitigated Rural Commercial and Industrial Development.1 Commercial and industrial developments may be permitted in rural areas only when no suitable urban industrial location exists or where their activities or nature is more suitable for a rural location, such as certain type of agro-related enterprises (e.g. anhydrous fertilizer and fuel depots). Considerations of commercial and industrial developments in rural areas will be administered as a conditional use in the District s municipal zoning by-laws. 6-16

75 .2 Commercial and industrial developments which, subject to policy under 6.5 above, best fit with a location in rural areas shall be planned under the conditional use process to locate where it is possible to serve the site and operational needs of the development for the success of the enterprise, maintain proximity to a designated rural-settlement center to support community economic development and where it is possible to consolidate access to major roadways and provincial highways from the municipal road system to ensure safe and efficient access..3 Commercial and industrial developments should be encouraged to provide enough land for potential expansion, while not wasting land. 6.6 POPLAR BLUFF INDUSTRIAL PARK Planned locations within the urban rural fringe sometimes represent the best location for specialty land uses like large scale industrial development with unique needs that may be challenging to provide in a more urban setting..1 Lands within the Poplar Bluff Industrial Park are designated to accommodate a wide range of commercial and industrial uses..2 Developments within the Poplar Bluff Industrial Park shall be subject to the regulations of the Poplar Bluff Industrial Park Authority..3 Developments within the Poplar Bluff Industrial Park shall be subject to the standards of the Municipal Zoning By-law..4 Lands may be designated as an Industrial Policy Area and expansion of the Poplar Bluff Industrial Park may be guided by the Joint Servicing and Revenue Sharing Agreement between the City of Portage la Prairie and the Rural Municipality of Portage la Prairie..5 The Municipal Zoning By-Law shall establish separation standards for the construction of permanent or temporary non-industrial buildings in proximity to the Poplar Bluff Industrial Park to minimize the introduction of buildings and uses incompatible with industrial operations. Such construction shall be a Conditional Use in the Zoning By-law and Council s approval shall be evidenced through issuance of a Conditional Use permit. 6-17

76 6.7 SOUTHPORT AEROSPACE PLANNING AREA Southport is unique, although it includes service infrastructure, recreation services and employment opportunities that typically support a successful community. It is presently managed by a community corporation as a business venture. The community corporation continues to own all the assets including airfield, houses, recreation facilities, structures and business facilities..1 The Municipal Zoning By-law will provide regulations to protect the flight paths required by Southport from incompatible land use that may adversely impact operations and/or endanger public safety..2 To encourage the development of aerospace, related and compatible development within the Southport designated Planning Area..3 Business development proposals within the Southport designated Planning Area which have the impact of expanding the development footprint will be required to include supporting background reports assessing impacts upon existing infrastructure, environment, safety, implications upon flight paths, surrounding land uses and road ways;.4 Future residential development and expansion within the Southport Planning Area will be directed to the residential land use areas designated in the Municipal Zoning By-law;.5 The Southport Planning Area will be established as a designated community under the Zoning By-law for the purpose of limiting the proximity and establishment of new or expansion of existing livestock operations to the Southport Planning Area. [AM.B/L # ].6 To encourage community use and shared community maintenance of recreation facilities to ensure their long term benefit and sustainability within the Planning District. 6.8 SPECIAL RURAL RESOURCE AND INFRASTRUCTURE POLICIES The policies outlined in this section address resource and infrastructure issues, which may arise throughout the Planning District and its member municipalities and incorporated communities. 6-18

77 6.8.1 Hazardous Uses.1 Facilities or developments, which manufacture, handle, store or distribute hazardous materials, will be governed by the following: a) wherever possible, new facilities should be well separated from residential areas and buildings used for human occupation; b) hazardous facilities should not be located closer to dwellings than permitted or recommended by the Department of Conservation; anhydrous ammonia facilities should be located a minimum of 100m from provincial highways and municipal road ways; c) in accordance with provincial regulations, where new development or expansion of a potentially hazardous use is proposed, information may be required relating to the nature of any potential discharges into the air, soil or water; the nature of outside storage requirements; the compatibility of surrounding land uses; and plans for buffering such activities from adjacent uses; d) in instances where the risk is severe, development may be directed to a suitable rural location, as an alternative to a community Natural Areas and Environmental Conservation Strong communities and a competitive agricultural economy need a healthy environment. Clean air, soil, surface water, groundwater and natural ecosystems underlie the health and well-being of a community and attract people to work and invest in the District. Planning for the future development of the Portage la Prairie Planning District will involve protecting and enhancing the natural environment as one of the aims of good stewardship and community building. The District Planning Board recognizes the natural environment is complex. It does not recognize municipal boundaries and there are varying limits to the stress of human activity it can absorb. 6-19

78 .1 Good stewardship of the Portage la Prairie Planning District s natural environment begins with the Plan acknowledging the potential for human activity to have environmental impacts and by determining the location of environmentally sensitive areas and by directing uses to these areas, which respect their environmental limits. Such areas include Delta Marsh, Lake Manitoba and the Assiniboine River..2 Protect natural areas and habitats, as illustrated on Reference Map 8 Natural Areas, from incompatible or potentially incompatible uses where: a) rare or endangered flora and fauna have received Provincial designation and protection under either the Manitoba Endangered Species Act or The Species at Risk Act; b) lands have received Provincial designation and protection under the Protected Area Initiative; c) lands have been identified as Wildlife Management Areas; d) private lands have been voluntarily protected by landowners..3 Identify and protect significant natural areas and sensitive environmental areas where human activities may create potential to stress the environment, by managing these activities as conditional uses in the municipal zoning by-laws..4 Although there is a desire to provide for conservation areas, there is also a concern that these areas should be balanced with agricultural interests, particularly with regard to the potential loss of land for agricultural activities. Therefore, where privately initiated habitat conservation land leases, or land transfers are proposed for consideration to Manitoba Conservation, the Department will be encouraged to consult with the District s Rural Municipality affected prior to approving the designation of a private habitat conservation area..5 Encourage implementation and inter-municipal cooperation in application of environmental protection measures in association with the region s Conservation Districts. 6-20

79 .6 Public access to natural areas and wildlife and fisheries habitat will be encouraged, where feasible, to foster appreciation for and enjoyment of nature, but such access should not lead to levels of activity which will exceed the capability of the area to sustain the environment and ecosystem integrity. In cases where private lands are involved, access to these areas will be subject to the approval of landowners..7 Development proposal and the use of land adjacent to designated provincial parks, wildlife management areas or other protected areas will be reviewed by Manitoba Conservation to ensure that future development or changes in land use will not adversely affect the sustainability of the area or the resident flora and fauna..8 That the remaining wooded lands be developed in a manner consistent with their wildlife potential, particularly in the areas along undeveloped road allowances, or lands adjacent to sensitive ecological areas (i.e., protected areas, wildlife management areas, provincial parks etc.) Hazard Lands, Flooding and Erosion Hazard lands include lands subject to water erosion, including all lands which would, within a 50 year period, be eroded or become unstable due to the action of water contained in an adjacent waterway or water body..1 Land assessed as having high risk of soil erosion due to slope and soil type will be encouraged to employ soil management and agricultural practices which minimize the risk of impacts of erosion and impacts upon surface water..2 Low intensity uses such as haying, grazing, forestry or open space recreational activities are generally acceptable within hazard areas..3 It may not be practical or desirable for economic or social reasons to restrict certain development in hazard areas. Developments should, however, be carefully controlled and planned to ensure that they are compatible with the risks or that the hazard has been eliminated or protected against. In these instances, the following criteria should be applied: a) proposed developments should not obstruct, increase or otherwise adversely alter water and flood flows and velocities; 6-21

80 b) there should be no added risk to life, health or personal safety; c) structures and services must be protected against flood damage and should be fully functional during hazard conditions; d) activities which alter existing slopes and may accelerate or promote erosion or bank instability should be prohibited, unless appropriate mitigation measures are taken to minimize the potential of such erosion or bank instability; and e) existing tree and vegetation cover should be preserved where appropriate to reduce erosion and maintain bank stability..4 Development proposals in flood plain hazard areas should be referred to the appropriate government department for review prior to approval by the Planning District..5 Where an area is known to be subject to ponding due to snowmelt or prolonged rainfall events, all proposed building sites shall be located outside of the ponding area wherever possible. Otherwise, the proponent shall provide a suitable amount of fill at the building site to provide a satisfactory level of protection for the buildings..6 Development proposals in hazard areas may require completion of engineering studies, including recommendations regarding preventative and mitigation measures, which eliminate the risk or reduce the risk to an acceptable level and remedial measures, which restore or rehabilitate damage, which may occur..7 The Zoning By-Law will encourage compatible development in the vicinity of sites used for solid waste disposal, sewage lagoons/ treatment plants and such other similar uses by identifying minimum separation distances to designated adjoining land uses Water, Reservoir and Shore Land.1 Developments will be encouraged in a manner, which ensures that waterways, water bodies, shore land areas and groundwater resources are sustained. Development proposals, which in the opinion of the Planning District Board, may impact upon water ways or water bodies will be referred to the appropriate government departments for review and advice prior to approval. 6-22

81 .2 Waterways, water bodies and shore lands in the Planning District may require protection to limit impacts of development. This may be achieved through site-specific planning programs and cooperation with Federal, Provincial or regional programs. The extent of protection required will be directly related to the characteristics of the local situation. The size and configuration of the waterway, water body or shore land; the need for public access; environmental characteristics; and economic potential will all have a bearing on the method of protection adopted. In order to provide protection, shore land reserves may be created..3 Land shall not be cleared or developed to the water s edge of creeks, streams or lakes, A minimum 15 metre wide buffer of undisturbed native vegetation from the high water mark shall be retained for the protection of the aquatic ecosystem, water quality and provide wildlife cover. Where indicator fish species walleye, pike, suckers, etc.) are present or the watercourse provides spawning, nursery, feeding or migratory habitat then a 30 m buffer from the ordinary high water mark will be encouraged. Within his 30 m buffer, we recommend shoreline alterations (for pathway, docks, etc.) be no more than 25% of the area..4 In the case of development proposals, which require significant volumes of surface water and/or groundwater, including irrigation projects, the proponent will be required to investigate the need for a Provincial Water Rights License. Development approval may be withheld until such time as a license is issued..5 The use of best management practices for agricultural enterprise shall be encouraged in order to minimize risks to groundwater and surface water..6 The preferred locations for major development or activities that may cause pollution under normal operating conditions or by accident are outside sensitive environmental areas as defined by locations which display soil and slope characteristics associated with high risks of groundwater or surface water impacts..7 Areas within the Planning District which may be identified as displaying sensitivity to potential groundwater impacts associated with development and the area around the District s regional water supply reservoir which is sensitive to development impacts upon surface water quality will be subject to special development review and all land use proposals will be referred to the Province for recommendations prior to development approval or the issuance of a development permit. 6-23

82 6.8.5 Open Space, Conservation and Heritage.1 Protect and promote the District s unique natural, heritage and cultural resources by building awareness within the District and region of their value to the community s quality of life and potential for tourism development..2 The Development Plan recognizes the special characteristics of Delta Marsh Area along the south shore of Lake Manitoba and the Sandy Lands area in the south-west region of the District, as illustrated on Reference Map 8 Natural Areas, and seeks to balance preservation of the natural landscape and environmental protection with planned development of the area s rural residential, recreation and tourism potential..3 Within areas adjacent to sensitive natural and ecological environments as defined by Manitoba Conservation in the District Plan will: a) preserve the area s natural and environmental values in balance with managing potential for recreation, tourism and rural residential uses to stimulate District economic development and population growth; b) ensure recreation, residential and commercial tourism developments are compatible with the area s environmental characteristics, existing agricultural uses and can be sustained by municipal infrastructure services; and c) promote a healthy eco-system by ensuring development proposals assess the opportunities and constraints posed by the environment and impacts upon the character of the area and are consistent with the objectives of the District Development Plan..4 Recreation, rural residential and tourism related commercial developments may be considered adjacent to areas with environmental and natural values as conditional uses in the zoning by-laws. 6-24

83 6.8.6 Outdoor Recreational Resources.1 Areas with high recreational capability, interesting and/or rare natural features and the Planning District s Wildlife Management Areas should be protected for outdoor recreation and related uses..2 Areas with lower recreational capability should be protected where high recreation capability resources are not sufficient to satisfy local and regional needs..3 Existing outdoor recreational uses and areas should be protected from incompatible or potentially incompatible land uses, which may threaten their integrity and/or operation..4 Proposed recreational development should not preclude access to and use of public resources (e.g. lakes and streams)..5 Proposed recreational developments will be encouraged to carefully match the activity and its intensity to the capability of the land and its ability to sustain the use over an extended period Heritage Resources.1 The identification of heritage resources should be encouraged within the Planning District..2 Heritage resources should be protected where: a) buildings or landscapes have received municipal and/or Provincial heritage designation; b) buildings or landscapes are in the process of receiving or are being considered for municipal and/or Provincial heritage designation; and c) buildings or landscapes have been developed and operate as heritage sites..3 The District will work cooperatively with Manitoba Heritage Resources Branch to protect existing heritage resources from incompatible or potentially incompatible land uses, which may threaten their integrity or operation. 6-25

84 .4 Sites and groupings of sites with heritage potential will be considered for designation as municipal heritage sites under The Heritage Resources Act, and/or municipal heritage conservation zones under The Planning Act Mineral Resources.1 Areas designated by the Department of Industry, Economic Development and Mines as being of high quality aggregate, potential and a valid mineral disposition, as illustrated on Reference Map 9 Mineral Resources, should be protected from incompatible and potentially incompatible land uses that would restrict exploration and development..2 In areas designated by the Department of Industry, Economic Development and Mines as being of medium aggregate potential, incompatible and potentially incompatible land uses may be permitted following review by the Department of Industry, Economic Development and Mines..3 Existing aggregate operations and lands containing a valid mineral disposition should be protected from incompatible and potentially incompatible land uses, in nearby areas..4 In areas with known aggregate resources, or areas having high discovery potential for these resources, uses should be limited to non-intensive agriculture (e.g. livestock grazing, cropping, forestry), temporary uses or other uses that will permit access to the resource..5 The exploration, development, production and termination of all aggregate resources shall be undertaken in a manner that is environmentally safe, stable and compatible with adjoining lands..6 Decisions respecting the economy and mining activities be integrated with decisions respecting protection and management of the environment so that mining activity is commenced with due regard for its impacts on the environment and environmental programs or initiatives are instituted with proper regard for their economic impact Transportation The transportation Policies under this section apply to the Rural Areas under the Plan as well as to the Urban Fringe Areas under the Plan. 6-26

85 .1 Aerial approaches to airfields within the Planning District shall be protected from incompatible or potentially incompatible land uses that may adversely impact their operation and/or endanger public safety..2 New developments should have legal access to the existing allweather road network unless the proponent makes an agreement with the municipality to upgrade an existing road or develop new road access to a standard agreed upon by the municipality. The proponent may be responsible for part or all of the costs of the new or up-graded roadway construction..3 Any proposed development in the area south of PTH 1 on both sides of PR 240 in the designated Urban-Rural Fringe area and the Institutional area must be guided by an overall concept plan that details how the area will be served without impairing the function of PR 240 and PTH 1. Traffic impact studies and on-highway improvements may be required..4 Land uses which generate significant amounts of regional vehicular traffic and/or significant truck traffic should be encouraged to locate in proximity to major municipal roadways, provincial roads and provincial highways..5 Development that may have a detrimental impact on the safe and efficient operation of the provincial highway system shall not be permitted unless mitigative measures, suitable to the Province, are incorporated into the development..6 Development which contributes to the evolution of a row of lots (strip development) each relying on direct access to the highway shall not be permitted..7 New development, which has the potential to generate significant vehicular traffic, should be directed away from those areas and land uses where such levels of traffic could endanger public safety..8 Commercial uses which primarily serve the traveling public should be encouraged to locate where there is access available from major roadways, including provincial roads and provincial highways if appropriate. 6-27

86 .9 Any development of a structure or any new, modified or relocated access directly onto a provincial trunk highway or that is to occur within the control areas of provincial roads and provincial trunk highways under provincial authority will be subject to approval by the Manitoba Infrastructure and Transportation or the Highway Traffic Board as applicable...10 Where a local traffic authority has control over roadways, new development adjacent to such roadways will be subject to approval by that traffic authority..11 All proposals which create new building sites within the control areas of provincial highways shall be circulated to the Manitoba Infrastructure and Transportation for review and approval, prior to the issuance of a development permit..12 Building setback standards shall be applied to new development along municipal roads, in order to provide a measure of safety for the traveling public, to provide a measure of buffering of buildings from roadway nuisances, such as noise and dust, and to reduce snow drifting problems along rural roads..13 Proposed developments which may be adversely affected by noise, dust and fumes from roadways and railways (e.g. residential uses, hospitals) should be encouraged to locate where there is adequate separation from these corridors and/or to incorporate sound barriers or landscaped buffers to mitigate these impacts..14where an area of development is bordered on one side by a major transportation corridor, such as a highway or rail line, new development should, where appropriate, be directed to the same side to avoid the need for local traffic to cross the corridor..15 Where there are existing or anticipated high volumes of truck traffic, the Municipality may designate certain roadways as truck routes, in order to limit deterioration of the local road system and to minimize safety problems and nuisance factors within communities..16 The local road or street network associated with any type of proposed development should be designed to conform to both the existing and planned road and street system of the neighbouring areas..17 Development should not be permitted in areas identified for highway widening or expansion unless provisions suitable to the province are made to accommodate the future widening or expansion. 6-28