This is the second Official Plan for the City of Summerside. It comprises both Text constituting Schedule “A” and the General Land Use Plan (LUP) constituting Schedule “B,” which is enclosed in a sleeve at the end of the report. The City was formed on April 1, 1995 by amalgamating the former Town of Summerside, the Communities of St. Eleanors and Wilmot, and part of the Community of Sherbrooke. The Planning Act R.S.P.E.I. 1988 Cap. P-8 requires that an official plan be completed for the City within three years of amalgamation and updated every five years. This Official Plan is enabled by the Planning Act and accords with its procedural and substantive requirements, as well as with other applicable policies and regulations of the Province of Prince Edward Island concerning land use, development and the environment.

The existing Official Plan was completed in 1998 for the former Communities of St. Eleanors, Wilmot and Sherbrooke and replaced by the City of Summerside Official Plan 1998. The Plan applied to all lands within the boundaries of the new City of Summerside, and consideration was given to interrelationships between the City and surrounding areas. The Plan provided the policy framework for a new development control bylaw to replace the four bylaws of the former communities.

1.2 Purpose and ScopeBack to Top

The purposes of the Official Plan are as follows:

Policy determination: to record results of the City’s planning process in formulating policies for land use and development, infrastructure and ongoing planning projects
Policy implementation: to provide a policy framework for drafting and administering the City’s new development control bylaw.
Decision-making: to provide a common reference point for Council decision-making on zoning, subdivision and other development matters, and to guide City staff in advising Council.
Communication: to share information between elected officials, City staff, property owners, citizens and developers on planning for the City’s future.

The scope of the Official Plan is set by the Provincial Planning Act (s.12), and includes:

a statement of economic, physical, social and environmental objectives
a statement of policies for future land use, management and development, expressed with reference to a specified period not exceeding fifteen years
proposals for its implementation, administration and the periodic review of the extent to which the objectives are achieved.

As noted above, the time horizon for the Official Plan is set by legislation to be 15 years. However, projections for population growth and land use needs are made for a 20-year period, to allow an adequate margin for development choices and to avoid inflationary pressures on land prices (see Section 5). Also, three periods are distinguished for phasing development and planning capital projects, as follows:

“short term” = first 5 years
“long term” = up to 15 years
“very long term” = beyond the 15 year time horizon of this official plan.

1.3 OrganizationBack to Top

The Official Plan is a critical building block in the City of Summerside’s strategic planning approach to management. The Plan includes a strategic vision and long-term development goals which set the framework for its specific policies. More detailed operational objectives are included in the Plan for economic development and growth management strategies. Other objectives are subsumed throughout the Plan in policy statements and supporting rationales.

Official Plan policies generally take one of the following three forms:

1. Land use and development policies respecting:

population change and urban growth
residential, commercial and industrial development
institutional, parkland and special use areas
agricultural, urban reserve and conservation areas.

2. Capital infrastructure policies for meeting present and future needs, including:

roads
water supply and distribution
sewage collection
sewage treatment
storm drainage

3. Policies for ongoing planning to implement and elaborate the Official Plan, including:

a development control bylaw for zoning, subdivisions and other developments
detailed secondary plans for areas in the City requiring special attention, which after adoption by Council will form part of the Official Plan
an economic development strategy and a strategic parks and greenways plan, which may result in subsequent revisions to the Official Plan and the development control bylaw
a heritage preservation plan and bylaw, which will complement the development control bylaw.

Policies are stated as definitively as possible to minimize potentials for ambiguity and, where applicable, responsibilities and schedules are identified for their implementation. However, deadlines for undertaking work tasks and capital infrastructure projects are subject to available resources and reviews of priorities by Council of the day.

1.4 ProcessBack to Top

The Official Plan was prepared with guidance of the Planning Board and included requests to twenty-two organizations inviting their suggestions on public policy issues. In addition, newspaper ads were placed inviting suggestions from the Public. The Committee was responsible for collecting and reviewing information, analysing policy needs and options, coordinating public consultation, and recommending the Plan to Council. In drawing up the Plan, the Steering Committee considered the results of the 2003 City Residents Survey which solicited development preferences from 503 residents.

The Board reviewed the results of the Public input and incorporated the experience gained over the past five years in implementing and administering the current Official Plan.

Invitations to 22 organizations (February 26, 2004) –soliciting input and comments on any relevant public policy issues.
Newspaper Advertisements (April 7/8/9, 2004) -- soliciting Public input on any issues arising from the implementation of the current Plan.
Planning Board meets to discuss input form the Public and input from the twentytwo organizations in the Study (April 23, 2004) -- reviewed issues and identified 19 issues for review and consideration by Planning Staff.

The process was interrupted when the City Planner resigned to return home to British Columbia. His replacement was engaged in November, 2004 and this process was resumed after budget deliberations were completed in April, 2005.

1.5 New Plans and InitiativesBack to Top

A number of new plans have been developed in the time between the 1998 Official Plan and the present. In addition, Summerside has developed a number of By-Laws which guide development in the City. The following lists the Plans in place, Plans currently in development and By-Laws in place since 1998:

Heritage Conservation Plan (May 20, 2003) - This Plan is a secondary plan within the Summerside Official Plan 1998. This Plan and the Heritage Conservation By- Law were developed with assistance from a Heritage Advisory Board (HAB). The voting membership of the Board consisted of the three Councillors sitting on the City’s Planning Board, another Councillor representing a Ward in the new Heritage District, and three Citizen Representatives. The City Heritage Plan and Bylaw provides policies and regulations designed to recognize, protect and promote Summerside’s rich heritage resources. The bylaw also provides a property tax incentive program for heritage property owners. Council appointed Faye Pound, Paul H. Schurman and George Dalton as citizen representatives on a Heritage Planning Board. 61 Granville Street [Silver Fox Inn] is the first historic property to be approved by Council for heritage designation. Twelve other historic properties have gone through the public process for heritage designation.
Summerside Strategic Plan (December 15, 2004) - A Plan to adapt the organization to changing community needs, make best use of human and financial resources and compete effectively for attracting economic growth. The strategic plan provides guiding principles and objectives which help to shape priorities in the Official Plan.
Summerside Recreation and Green Plan (November,2005) - A draft Official Secondary Plan which lays out Council policies for:
- Reconfiguring and expanding the City’s park system over time to effectively and efficiently meet changing community needs across urban and suburban areas.
- Guiding Council in the selection of suitably-sized and equipped parks at the right place and at the right time.
- Adding more designated conservation areas to protect and enhance valuable natural resources, while providing controlled public access.
- Extending and intensifying Summerside’s network of greenways, trails and boardwalks, with interconnections to recreational facilities, parks and conservation areas.
- Promoting City green partnerships with the public and private sectors.
Summerside East-West Connector Plan (Draft April 13, 2004) - A Draft Official Secondary Plan developed in response to The Summerside Official Plan 1998 which first identified the need for an east-west connector street. Preparation of a connector plan was included as a priority under the Strategic Plan 2004 (initiative S7.1.2).
By-Laws are the operational guides resulting from the development of Planning initiatives in the City. The following by-laws are in place to guide development:
- Sub-Division and Site Development By-Law SS-19 - (July 30, 2001),(as amended)
- Zoning By-Law SS 15 (December 2003) (as amended),
- Heritage By-Law SS-20, (March 2004) (as amended),
- Building By-Law SS 09 (April 19, 2004)(as amended).

The Official Plan is intended to be a dynamic management tool and is subject to continuing review and adaptation to meet changing circumstances. Council may pass resolutions to amend the Plan at any time on a specific needs basis. Also, the ongoing planning mentioned above will result in feedback to the Official Plan. Staff submit monthly reports to Council on the Plan’s continuing effectiveness, and include any recommended changes. Lastly, section 15.1(1) of the Planning Act requires municipalities to review their official plan and bylaws at least every five years.

1.6 Issues Raised in the ReviewBack to Top

As mentioned in the previous section, Planning Committee identified 19 issues for review and consideration.

Add dedicated row-housing zone (in addition to allowing in R4 zone along with apartments).
Allow accessory apartments as discretionary uses in R1 zone
Review mobile home policies.

Issue	Detail	Action
New secondary plans:	Complete secondary official plan for East-West Connector Street and revise land use designations around connector on land use map (LUP) of general O.P. Complete secondary Recreation and Green official plan, including Council policies for parks, conservation areas, and interconnecting greenways with trails and boardwalks. Add new conservation areas onto LUP.	Priority for 2006 Plan tabled November 2005
Promote more mixed uses(and reduce needfor O.P. map amendments and rezonings)	Substitute one residential land use category on LUP for low-, medium- and high- residential. Where appropriate, allow more than one zone in each O.P. land use category Diversify allowable uses in some zones where appropriate. Review opportunities to convert some discretionary uses into conditional uses and to expand permitted uses.	See text See text See text See text
Individualize zoning for specific properties	Review potential use of site specific zoning.	See text
Residential	Will be addressed in update of Zoning Bylaw
Commercial	Review need to expand Granville Street commercial zoning (including use of Holland College site). Improve mixed residentialcommercial building policies. Review West End development policies.	See text See text See text
Industrial	Review business park needs. Assess future of industrial lands along Highway No.2.	Under discussion with Economic Development Department
Nature Conservation	Review City/municipal responsibilities and standards for coastal, wetland and stream management.	See text
Heritage Conservation	Review whether current heritage incentives are sufficient for encouraging volunteer heritage designations.	Will be covered under separate report.
Housekeeping	Make housekeeping refinements to LUP/zoning boundaries where needed (over and above any changes mentioned above). Update and streamline text.	See text See text

As a result of this discussion, the 2005 Official Plan has been designed to reflect the results of the analysis of the issues raised.

Reference to these issues will be made in the relevant areas of the text as appropriate.

Section 2. STRATEGIC VISION AND GOALSBack to Top

This section of the Official Plan includes a brief overview of the City of Summerside’s history, highlights of the 2003 Residents Survey, and Council’s strategic vision and long-term development goals for the future.

2.1 History of the City of SummersideBack to Top

The City of Summerside was formed on April 1, 1995 from amalgamating the former Town of Summerside, the Communities of St. Eleanors and Wilmot, and part of the Community of Sherbrooke. As of May 2001, Summerside’s population was 14,654 persons, and its total land area is 7,100 acres or 28.73 square kilometers (it is Prince Edward Island’s second largest city after Charlottetown, the provincial capital). Summerside is located in Prince County, astride one of the narrowest portions of the Island lying between Bedeque Bay to the south and Malpeque Bay to the north. The topography is quite low with a ridge running generally east-west through the City with its highest elevation being 39 meters. The former Town of Summerside and Wilmot are largely on the south slope of the ridge, Sherbrooke is on the north slope, and St. Eleanors extends over both slopes.

The earliest inhabitants of the area were Micmac Indians who camped seasonally along Bedeque Bay. Settler communities started in the eighteenth century and were primarily engaged in agriculture, although fishing was also of importance. St. Eleanors and Sherbrooke were originally Acadian settlements, whereas Summerside and Wilmot had primarily Loyalist beginnings. The area became a major timber exporter during the Napoleonic wars, when Britain’s usual supplies were cut off from the Baltic states, and by the 1840's local timber formed the basis of a significant shipbuilding industry, especially in the Town of Summerside because of its superior harbour. Many of the boats were sold in Britain, but others were used by local shipping businesses to export timber and agricultural produce, and to import goods for a growing wholesale and retail trade.

In the 1860's, the port of Summerside gained importance because of proximity to new railway lines in New Brunswick, which provided it access to North America’s expanding railroad network. Summerside’s position as a trading and service centre for the region was further reinforced by connection to a new railroad on the Island itself in 1875, the same year as it was incorporated as a municipality. (Incorporation came much later for the other communities: St. Eleanors in 1956, Wilmot in 1965 and Sherbrooke in 1973.) Interconnected railways and steamship lines spurred a growth in commercial travellers and the start of Summerside’s tourist industry, resulting in the opening of a number of large hotels in the 1880's. The latter part of the nineteenth century and the beginning of the twentieth century witnessed construction of numerous schools and churches, as well of the first Summerside electric plant, the Summerside Post Office building (which is now the City Hall), and the final expansion of Holmans department store on Water Street. After some decline in population between 1901 and 1911, Summerside boomed again to reach over 5,000 persons in 1941. Much of this growth was spurred by Summerside’s international control over the lucrative silver fox industry, which enabled it to remain comparatively prosperous through the Depression years until the taste for fur products started to change in the mid-1930's. The legacy of “silver fox money” and earlier economic successes lives on in Summerside’s many fine heritage homes.

The Second World War saw creation of a large RCAF base near St. Eleanors. After reactivation of the base in 1947, it continued to be one of the economic mainstays of the area until it was finally closed in 1989. Operation of the base, together with post-War expansion of food-processing, construction, retail trades and tourist industries sustained intermittent growth (the early 1980's Recession took its toll in Summerside as elsewhere). The Town of Summerside had already been built up to capacity by the 1960's and much of the new residential growth located in St Eleanors and Wilmot, facilitated by access from the old No. 1 Highway running along South Drive and Water Street East. Also, commercial development expanded out from the Summerside Downtown eastwards in a strip along Water Street East. The “All-Weather” No. 2 arterial highway was built in the 1960's through St. Eleanors and Sherbrooke, and in some places now forms the City boundaries. Only limited development has been allowed along the new highway, but it provides valuable access to a growing commercial centre on north Granville Street. Although the railway is closed (the right-of-way is now used for the Confederation Trail), it influenced the location of Summerside’s two main industrial areas near Greenwood Drive and Harvard Road respectively.

The closure of CFB Summerside did cause some immediate economic losses, but these have already been reversed by a number of developments. A $38 million National GST Processing Centre was built in Summerside employing about 600 full-time staff. The base property, itself, has been converted into a growing industrial/aerospace park and residential c2ommunity, under management of the Slemon Park Corporation (only part of the former base is located within the City boundaries). The East Prince area has become the major centre of the Island’s large potato processing industry and Summerside’s port facilities have been modernized to handle vessels up to 5,000 tons, many of which ship out agricultural products to North and South America. A 21-acre waterfront site adjacent to the older downtown area has been land-filled and comprehensively developed with a shopping mall, offices, a hotel, tourist outlets, and cultural and educational facilities. There is also an adjoining 100-vessel marina. A Watts call centre has located in the Greenwood Drive industrial area.

The newly opened Confederation Bridge links the Island with New Brunswick and the rest of Canada, and should provide a similar boost to Summerside’ economic fortunes as did the rail and steamship connections of the last century.

2.2 Community SurveyBack to Top

The 2003 City Residents Survey solicited levels of satisfaction about current City services and preferences regarding future development. The survey results confirm considerable interest and concerns among Summerside residents about the quality of their built and natural environment, which have been taken into consideration in preparing the Official Plan.

Some significant survey findings about residents’ development preferences are as follows:

there is strong support for expanding residential, commercial and industrial development
many citizens favour single-family detached housing and do not want a reduction in lot sizes; conversely there is less support for higher density housing forms (though there is moderate support for more affordable housing)
there is continuing strong support for the heritage preservation bylaw
there is stronger support for adding small retail stores than there is for more shopping malls or highway commercial development
the most favoured areas for commercial development are the Downtown and the Industrial Park (this is a change from 1996 where North Granville was selected), whereas the least favoured areas are Water Street East and North Granville Street.
downtown revitalization is strongly supported
there is still moderately strong support for reducing traffic along Water Street East many residents favour preserving more green space and a somewhat smaller proportion favour developing more parkland
with regard to development along the waterfront, there is considerably more support for additional parkland and cultural developments than there is for more residential and commercial development
there is strong support for environmentally sensitive development and moderately strong support for more restrictive controls over commercial signs.

2.3 Strategic VisionBack to Top

Council’s strategic vision for future development of the City is to:

Develop a unified and influential City which is economically and environmentally sustainable, has a growing population across all age groups, balances tradition with modernity, maintains high standards of livability, and provides quality services to residents, the surrounding region and visitors.

2.4 Long-Term GoalsBack to Top

Council’s long term goals for guiding future development of the City are as follows:

GENERAL:

Promote strategic use of the new City of Summerside’s combined institutional, financial and natural resources to best serve the needs of all residents, as well as to strengthen the City’s ability to control its own future development.
Promote a sustainable economic development strategy for the City to support future population growth and to make the best use of local resources, while reducing vulnerability to external economic changes.
Sustain balanced population growth by expanding opportunities for younger working families, while also enhancing and promoting the City’s assets as a retirement centre.
Conserve and enhance the City’s traditional social character, heritage buildings and natural environment, and ensure that new development is compatible with these values.
mprove the aesthetic and amenity values of the City’s built environment for the enjoyment of existing residents, for attracting new residents and businesses, and for reinforcing Summerside’s attractions as a regional service and tourist centre.

GROWTH MANAGEMENT:

Promote effective growth management practices within the City to ensure efficient land use, cost-effective infrastructure, a competitive tax base, and protection of agricultural lands and natural resources.
Advance sound growth management practices at the regional level which complement the City’s own efforts.

RESIDENTIAL DEVELOPMENT:

Accommodate the diversified residential needs of all City residents for different housing types, densities and forms of tenure, taking into account present housing composition, changing age and family needs, needs for affordable housing, and the special needs of the elderly and disabled.
Promote quality-designed residential developments featuring mixes of housing types appropriate to the local area, efficient use of land and attractive site development, economical but high standard servicing, vehicular/pedestrian accessibility and safety, and adequate recreational space.
Facilitate sensitive recycling of older, non-heritage housing and lots as an affordable housing option.
Concentrate higher density residential development in locations where residents can benefit most from proximity to jobs, facilities and services, as appropriate to their individual needs.

COMMERCIAL AND INDUSTRIAL DEVELOPMENT:

Encourage a functional system of attractive commercial areas, each developed on an integrated basis to enhance their competitive drawing powers for particula customer markets.
Support a planned industrial strategy for the City to attract desirable, new industries in special purpose industrial areas, with a focus on quality industrial park development, transportation accessibility and minimization of conflicts with other land uses.

INSTITUTIONAL, NATURAL AND HERITAGE RESOURCES:

Provide for adequate and cost-effective institutional facilities to serve community needs for education and training, culture, recreation, health care, public safety and government, taking account of how population changes will affect demands for certain services.
Provide for an adequate and cost-effective network of active and passive parks and open areas interconnected by trails and greenways, which serve different usergroups and conserve natural resources.
Manage the City’s waterfront areas on an integrated, multi-user basis, including maintaining and enhancing public access, important water views, valuable open space and environmentally sensitive areas.
Conserve and enhance the City’s rich resource of heritage buildings and streetscapes for their cultural and aesthetic values, and for housing supply and economic development purposes.

INFRASTRUCTURE:

Improve and expand the City’s road and pedestrian networks to provide safe and convenient access, and in a manner consistent with sound growth management policies.
Improve and expand the City’s water, sewage, storm drainage and electrical infrastructure at adequate standards and in a manner consistent with sound growth management policies.

IMPLEMENTATION:

Advance implementation of the Official Plan through government and community collaboration, detailed area and sectoral planning, plan monitoring and reviews, facilitative development control, capital planning for timely provision of costeffective infrastructure, and further rationalization of the City’s boundaries.

Section 3. ECONOMIC DEVELOPMENT AND POPULATION CHANGEBack to Top

This section describes assumptions about economic development and population change underlying the Official Plan, as well as Council’s specific objectives and policies in these areas.

ECONOMIC DEVELOPMENTBack to Top

3.1 Background

A preliminary review is made of economic assumptions underlying the Official Plan, and to also lay the groundwork for subsequent preparation of a detailed economic development strategy.

Table 3-1 below compares proportions of the City’s workforce among primary, secondary and tertiary economic sectors, together with workforce distributions in surrounding Prince County and in the Province generally.

Table 3-1. Distribution of Workers by General Economic Sectors 2001 (1991) Census
Sector	City of Summerside		Prince County		P.E.I.
Sector	#	%	#	%	#	%
PRIMARY RESOURCES	450 ( 311)	5.9 (4.5)	4,495 ( 4,295)	19.0 (19.3)	9,880 ( 9,960)	13.6 (14.8)
SECONDARY MANUFACTURING / CONSTRUCTION	1,440 (1,295)	18.8 (18.8)	4,950 ( 4,305)	20.9 (19.3)	13,020 (11,490)	17.8 (17.0)
TERTIARY SERVICES	5,760 (5,284)	75.3 (76.7)	14,230 (13,655)	60.1 (61.4)	50,035 (46,005)	68.6 (68.2)
TOTAL	7,650 (6,890)	100.0 (100.0)	23,675 (22,255)	100.0 (100.0)	72,935 (67,455)	100.0 (100.0)

As can be seen from the above Table 3-1, the City’s workforce is strongly focused on tertiary service activities rather than on primary resource industries and secondary manufacturing construction industries. As in 2001, significant tertiary activities are retail trades , City, provincial and federal government, including the GST Centre , health and welfare services and accommodation and food services. In addition, as was the case in 2001, the City is the regional service centre for surrounding Prince County, which is very important for its primary resource industries. Indeed, the County employs 40% of the Province’s agricultural labour force and 46% of those employed in fishing. As predicted in 1999, Slemon Park has become home to a complex of “high tech”, secondary manufacturing industries, including aerospace enterprises such as Atlantic Turbines which repairs aircraft engines.

The local economy does have a large export base component which crosses primary, secondary and tertiary sectors, including agricultural processing, the Slemon Park industrial complex, the GST centre serving all of Canada, and the large tourist industry, which all bring in valuable outside income and induce local spending. There are also positive signs of maturation towards a more complex and higher-level urban economy, such as diversification within and across sectors, the generation of new value-added production, and a promising start in technological industries. However, the local economy remains vulnerably dependent on primary resource exports, particularly on monoculture potato production. Also, the tertiary sector has been slow to add higher level services, including in retail sales, business support services and education and, to some degree, in tourism.

Looking at opportunities and challenges for the local economy:

1. Summerside’s strategic location with respect to the Confederation Bridge, has improved transportation to outside markets, cheaper input materials for local production and more tourist visitors. Recognizing this, the City has undertaken to upgrade the east approach to Summerside by upgrading the Reads Corner intersection. Improving circulation and traffic flow into the City.
2. As outlined in the 1998 Report, local agriculture has been impacted by market dominance by multi-national companies, which has driven prices downward. There is a potential for, the City and the East Prince region to transform these challenges into comparative advantages by applying leadership in agricultural diversification, bio-engineering, improved ecological practices and agricultural training.
3. Senior government “downloading” of responsibilities for economic development, physical infrastructure and government services has placed more demands on City resources. The City has become more economically self-reliant and better able to control its own future.
4. Global integration and the new knowledge-based economy will broaden local business horizons, but will require expanded entrepreneurial, organizational and technological skills among the local work force. The City has responded with increased support for ‘Smart’ technologies that provide communication access across the Region.

3.2 Economic Development StrategyBack to Top

Given the above, Economic Strategy as elaborated in 1998 has not changed significantly:

Focus their strategy on long-term sustainability, including:

generating adequate numbers of continuing and rewarding jobs for the local workforce
sharing economic opportunities across social groups
maintaining environmentally compatible industries and practices.

Promote comprehensive economic development, including:

realistic expansion of traditional industries
selective diversification into new high-growth economic sectors
continuing adaptation across all sectors to compete in the global economy
promotion of a competitive business environment
public and private cooperation for proactive community economic development.

.3 Undertake a strategic planning approach to formulate and implement their economic development strategy, including:

multi-stakeholder participation by business and government
scanning of changing internal and external economic environments
focussed consensus-building around important development issues
clear allocation of responsibilities for action
continuing monitoring, revaluation and redirection of its strategy

Policies

Council’s policies for an economic development strategy are to:

Continue its lead role in organizing and facilitating a joint government/ business approach to prepare an economic development strategy.
Keep evolving the Official Plan and development control bylaw to implement the City’s economic development strategy.

POPULATION CHANGE

3.3 BackgroundBack to Top

As shown on the following Table 3-2, the communities that now constitute the City of Summerside have experienced periods of significant population growth over the last 25 years, interspaced with other periods of absolute declines. However, the latest Census (2001) has confirmed that the City’s population has remained stable and has increased slightly by 0.9% since 1996 (and 7.44% since 1991).

Table 3-2. City of Summerside: Population Changes, 1971-2001
Year	Population	% Change
1971	12026
1976	12682	+5.5%
1981	12383	-2.4%
1986	13848	+11.8%
1991	13639	-1.5%
1996	14525	+6.5%
2001	14654	+0.9%

Note: City census figures prior to 1991 were estimated assuming a 60% share of population for the former community of Sherbrooke.

The growth projections that were made for the 1998 Official Plan used a ‘medium’ growth scenario for the City. Based on the 2001 Census data, the ‘medium’ growth scenario has proven to be a bit optimistic. selected scenario incorporates, in turn, Statistics Canada’s 'no.3' scenario of population growth for the nation and the provinces.1 Under the latter scenario it is predicted that P.E.I’s population will grow to 159,700 persons in twenty years time, assuming a small upturn in national fertility rates, decreasing rates of mortality, rising national immigration, and internal migration flows more favourable to the Maritimes than in the past.

At the time of the 2001 Census, Summerside’s population of 14,654 persons constituted 10.8% of the total provincial population of 134,557 persons. The medium growth scenario for the City projects that its future share of provincial population over the next 20 years will average 12.5%, based on trends to more urbanization in the Atlantic provinces generally and assumptions that Summerside’s economy will successfully adapt to future economic challenges and opportunities (see above). It is also assumed that effective action will be taken at the regional level to prevent development taking place on agricultural lands which would siphon growth away from the City (see Section 5 on growth management). Based on all these assumptions, the following Table 3-3 shows the City growing by about 4900 persons over the next twenty years, i.e. equivalent to an annual growth rate of 1.45%.2

Table 3-3. City of Summerside, Projected Population Growth: 1997- 2016 (MEDIUM Scenario)
YEAR	Population Level	Accumulative Growth Increase
Est.1997 Base	14700
+ 5 years	15800	1100
+ 10 years	16900	2200
+ 15 years	18200	3500
+ 20 years	19600	4900

Not only will Summerside’s population grow substantially in the future, but its age composition will also change. As shown on the following Table 3-4, the City’s present age structure (which is similar to that of the Province generally) is already more elderly than the general Canadian population. While this elderly age structure reflects the City’s attractions as a retirement centre, it also reflects high levels of out-migration among younger persons looking for jobs and alternative lifestyle opportunities. In the future, Summerside will doubtless follow national trends towards more population aging, but this could be balanced somewhat if Summerside’s economy expands sufficiently to retain and attract more working families. Such balancing is assumed in Table 3-4 for projections of the City’ age structure in twenty years time, which are intermediate between the City’s present age structure and that projected by Statistics Canada for the entire province.

Table 3-4. City of Summerside, Changing Age Structure 1991-2016
20-Year Age Cohorts	1991 CENSUS		20-YEAR PROJECTED
20-Year Age Cohorts	City	Canada	PEI*	City
0	29.7%	27.7%	25.0%	27.0%
20-39	31.6%	33.4%	24.5%	28.0%
40-59	21.2%	23.0%	27.2%	25.0%
60+	17.5%	15.9%	23.3%	20.0%
	100.0%	100.0%	100.0%	100.0%

* Derived from Canada Statistics `no. 3' growth scenario (see above)

3.4 Policies for Population ChangeBack to Top

Council’s concerns with future population change are to achieve substantial but sustainable population growth in the City, including balanced population growth between working-age families and retirees.

Policies

Council’s policies for population change are to:

Promote a sustainable economy to support population growth.
Enhance and promote Summerside’s assets as a retirement centre.
Promote recreational, training and employment opportunities to retain and attract young working-age persons in the community.

Section 4. GENERAL LAND USE PLANBack to Top

This section lists the land use categories shown on the General Land Use Plan (LUP), and summarizes the overall development concept for the City that is elaborated in subsequent sections of the Plan.

4.1 Land Use CategoriesBack to Top

The General Land Use Plan (LUP) forms Schedule “B” of the City of Summerside’s Official Plan, and is appended in a sleeve at the end of the report. The designations depicted on the General Land Use Plan are as follows:

Low Density Residential
Medium Density Residential
High Density Residential
Comprehensive Development Area (CDA)
Downtown
Commercial
Industrial
Institutional
Parkland
Special Use
Restricted Use
Agricultural
Urban Reserve
Conservation
Urban Growth Boundary

4.2 Overall Development ConceptBack to Top

Note: The following development concept is presented for informational purposes to overview important features of the Official Plan and, because of its summarized nature, should not be used for interpreting Council policies.

The development concept for the City of Summerside embodies principles of sustainability, functionality and diversity, i.e.

Sustainability is a measure of the City’s continuing ability to maintain economic growth and a healthy tax base, to share social access to jobs, housing and services, and to exercise responsible environmental stewardship for the benefit of present and future generations.
Functionality refers to efficient organization and integration of the City’s land uses patterns, physical structures and infrastructure to meet changing community needs for housing, commerce, industry, tourism, education, heath, government, culture and recreation.
Lastly, functionality is mediated by diversity in the Plan to bring about more informal and humanistic mixing of urban uses, to broaden individual choices, and to add interesting variety in social contacts and the built environment.

The principle of sustainability features strongly in the City’s efforts to balance population growth, economic development and resource use for the continuing benefit of the community as a whole. The Plan incorporates a comprehensive growth management strategy which balances market forces with wider public interests to create efficient and attractive urban growth patterns. One important feature of this strategy is containment of development within an urban growth boundary (UGB) and protection of lands outside the boundary in an agricultural reserve, which will maintain a harmonious and enriching duality between town and country in the City’s character. Based on realistic growth projections, sufficient urban areas are allocated for future growth without encouraging sprawl development. The UGB will be combined with other measures in the comprehensive urban growth strategy, including zoning and subdivision controls, and City participation in regional planning. Together, these measures will promote the best use of urban and agricultural lands, orderly phasing of development, cost-effective infrastructure and prudent environmental stewardship. Thus, effective growth management will help sustain Summerside’s attractiveness as a place to live and to do business.

The principle of functionality features prominently in how the Official Plan organizes residential, commercial and industrial land use patterns across the City. A gradation of residential densities is promoted: from higher density housing around the North Granville commercial area and to a lesser extent around the Downtown, through some nearby areas of medium density housing, and out to lower density areas towards the urban periphery. One low density zone will be reserved for single-family housing, and another will accommodate single-family housing together with ‘side-by-side’ semi-detached dwellings and ‘over-andabove’ duplexes, all on large lots. Medium density housing will include all the above housing types on smaller lots. Besides existing medium density neighbourhoods in the old part of the City, some new growth areas will be set aside for residents who want to save costs with smaller lots or desire the intimacy associated with more traditional streetscapes. Lastly, high density row housing and apartments will be focused in areas located near to jobs and amenities.

A functional system of convenient and attractive commercial centres will be promoted across the City, each with clusters of complementary businesses targeted to their respective markets. The Downtown will continue as a central focus for retail commercial space together with business, professional, cultural, entertainment and government buildings. A large part of the growing North Granville commercial area with its convenient access from Highway No.2 is reserved for large format retail commercial businesses, including large malls, supermarkets, department stores and newer retail innovations, such as smaller versions of big box stores. The City’s two other gateways at St. Eleanors Corner and Reads Corner will provide more specialized highway commercial services for the traveling public, while service commercial businesses will continue to be focused along Water Street East and in other areas. Similarly, a functional system of special-purpose industrial areas will be promoted. The Harvard Street and Greenwood Drive areas will continue to be the home of light industries, and the latter will be expanded in size to accommodate growth. The Harbourfront area adjacent to the Downtown will continue to accommodate marine industrial uses. Lastly, the St Eleanors industrial area on Highway No.2 will be reserved for light and heavy industries.

The Plan includes preliminary strategies for improving and expanding infrastructure to serve existing and new development, which are the first step towards preparing a detailed capital plan for the City. Of special note are the water system improvements made in west St. Eleanors to meet contemporary fire protection standards. A new standpipe was constructed and larger pipes were installed from Bayview to West Drive. Pursuant to testing and certification, and growth demands dictate, the area will be held in an urban reserve. Another urban reserve is designated on the east side of the City for future urban expansion. Significant road improvements were made to the North Granville commercial area as well as along Water Street East, which is the main east-west connector through the City and also serves a growing number of businesses and residential subdivisions.

The Official Plan includes measures to encourage diversity, some of which are mentioned below.

Residential neighbourhoods will be open to proposals for discretionary uses such as boarding houses, group homes, senior citizens housing, nursing homes, tourist homes and compatible commercial uses. Home occupations will also be encouraged.
Other housing alternatives will encouraged to broaden the City’s housing mix, including accessory apartments, other conversions of houses into additional dwellings, garden suites for care of elderly in-laws, individually-owned multiple housing units, recycling of older residential areas, adaptive preservation of heritage houses, and the option of placing factory manufactured housing on residential lots.
There will be flexibility on allowing ancillary residences in commercial buildings, and apartment buildings with commercial space on their ground floors.
The harbourfront near the Downtown will be opened up to include interesting mixes of marine industrial activities and tourist commercial uses.
Comprehensive development areas (CDAs) will be encouraged for mixing different housing types and densities, for integrating residential/commercial/ recreational uses, and for incorporating innovations such as cluster layouts and zero lot line housing.
More variation will be promoted in building heights.
Ecological diversity will be protected in a number of conservation zones across the City.

The Official Plan is a dynamic document and will be adapted over time to accommodate changing needs, as well as elaborated with more detailed planning in key areas and sectors. Notably, three detailed secondary plans are scheduled for the West End, Downtown and Glover Shore areas to address their special development opportunities and concerns, and to give opportunities for local property owners and stakeholders in their planning. Integrated harbourfront planning will be promoted within and between all these secondary planning areas and a proposed Lighthouse Shore CDA at the west side of the City. A strategic parks and greenways plan tabled in November 2005 lays out specific guidelines for developing networks of active and passive parks, interconnected by linear parks and walking trails. The 1998 Official Plan also laid the groundwork for a City economic development strategy, and a heritage preservation plan and bylaw (which was implemented in May 2003). Wherever needed, the results of this ongoing planning will be fed back into the Official Plan.

Section 5. GROWTH MANAGEMENTBack to Top

This section of the Official Plan describes Council’s rationale, objectives and policies for effective growth management in the City of Summerside. Council’s overall growth management strategy is reviewed first and then each of its component methods are described in detail.

5.1 RationaleBack to Top

The purposes of growth management policies are to balance market forces with wider public interests to create urban development patterns which are economically efficient, aesthetically attractive and environmentally sound.

The City wishes to promote controlled and compact development patterns to avoid strip development along major highways, and leapfrogging over uncompleted subdivisions and other vacant sites. These forms of growth increases costs for providing capital infrastructure, for operating and maintaining utilities, and for road maintenance, snow clearing and school bussing. It is also difficult to coordinate the timely provision of public facilities to keep up with housing growth. Thus, the consequences include inefficient public spending, higher taxes, increased development costs and higher prices for home buyers. These costs are worth avoiding in order to maintain Summerside as an economically attractive place to live and to operate a business.

Effective growth management is vital to the City’s plans for succeeding in the highly competitive global economy. Effective management of the City’s growth is also very important for protecting valuable agricultural lands and environmental resources. Indeed, ensuring agricultural sustainability is vital for both the East Prince regional economy and the economic base of the City. Most of the undeveloped areas within the City are classified by the Canadian Land Inventory (CLI) as valuable class 2 agricultural lands, and are actively farmed. The small remainder of class 5 lands are not suited for intensive agriculture, but do constitute valuable wetlands and natural drainage areas that should be preserved (see Section 10 for more on these issues).

It is also recognized that the success of the City’s growth management efforts will be closely tied to how well growth is managed in the surrounding East Prince region. Uncontrolled regional growth will not only eat up valuable farmland but will also drain potential growth away from the City. On the other hand, if the City wishes regional growth to be effectively controlled it will have to set a good example by applying sound growth management policies Province of Price Edward Island, Royal Commission on the Land, Everything Before Us, 1990; Commissioners Report on Municipal Reform, 1993; New Cities, New Towns, 1993. Summerside Official Plan 1998 (Rev. 2006) 5-2 within its own boundaries. Successive Provincial Government reports have strongly advocated containing urban growth within well-planned and serviced communities, curtailing sprawl development and preserving valuable agricultural lands.

In conclusion, it is emphasized that Council’s growth management policies are not designed to slow down or deter growth, but rather are designed to promote growth taking place in such a way that is beneficial for the whole community and the region. Indeed, effective growth management can itself promote growth by creating a more attractive urban environment for residential and business development.

5.2 ObjectivesBack to Top

Council’s objectives for growth management are to:

Ensure a sufficient supply of zoned urban lands to satisfy market demands over the next 15 years and beyond.
Improve security for private and public investments into land development by making more rational, consistent and transparent decisions on how urban growth is managed.
Promote efficient land use patterns by containing growth within those areas most suited for development, including making full use of already serviced areas.
Promote cost-effective infrastructure through orderly and contained urban expansion.
Promote coordinated phasing of community facility programs with urban expansion to avoid either overburdened or underused services.
Protect agricultural lands from premature development, speculation and other harmful urban impacts.
Protect natural resources and environmentally sensitive areas from serious damage or irrevocable loss.

5.3 MethodsBack to Top

The Council will employ a number of methods to promote its growth management objectives, including:

Zoning Control over the designation, phasing and conditions of allowable land uses on individual properties.
Development Control over construction standards, financial responsibilities and the imposition of levies for subdivisions and other developments.
Capital Planning for cost-effective infrastructure and facilities to meet current and future needs, including collaboration with the Province on their planning.
Secondary Planning within the general framework of the Official Plan to prepare detailed development guidelines for areas requiring special attention, with participation by local residents and stakeholders.
Collaboration in Regional Planning with other jurisdictions to promote sound land use and growth management which complements the City’s own efforts.

These methods are integrated into a comprehensive growth management strategy to advance Council’s growth management objectives, as illustrated in Table 5-1 on the following page.

5.4 General PoliciesBack to Top

Council’s general policies for growth management are to:

Promote a comprehensive strategy which integrates a range of mutually reinforcing methods to achieve Council’s growth management objectives, including , zoning and development controls, and capital, secondary and regional planning.
Implement specific policies for each growth management method to support Council’s comprehensive growth management strategy.

Table 5-1 Comprehensive Growth Management Strategy
Growth Management Objectives	Growth Management Methods for Achieving Objectives
Growth Management Objectives	a) Urban Growth Boundary (UGB)	b) Zoning Control	c) Development Control	d) Capital Planning	e) Secondary Planning	f) Regional Planning
1. Sufficient land supply	**	**		*
2. Investment security	**	**		*	*	**
3. Efficient land	**	**	*		**	*
4. Cost-effective infrastructure	*	*	**	**	**	**
5. Cost-effective	*		*	**	*	*
6. Agricultural sustainability	**	*	*			**
7. Environmental protection	*	*	*	*	*	**

**= more significant correlation
*= less significant correlation

More details on specific growth management methods and Council’s supporting policies are described below.

5.5 Modification of the Urban Growth Boundary (UGB) ConceptBack to Top

In the 1998 Official Plan the concept of the UGB was introduced to manage and control the possibility of uncontrolled urban sprawl and loss of farmland in the City boundaries. In the interim it has been shown that this control is not needed. Development in the City has been orderly with lands coming on-line as needed.

As a result, the Urban Growth Boundary of the City will be adjusted to follow the boundaries of the City. The agricultural zone will be maintained to provide for the controlled addition of lands to the urban landscape.

5.6 Zoning ControlBack to Top

Council will apply zoning controls to advance its growth management objectives. Zoning will reinforce the demarcation between urban growth areas and the agricultural zone by specifying appropriate allowable uses on each side of the boundary. Zoning controls will also enhance certainty and security for private investment. Careful zoning will promote efficient land use patterns and cost-effective infrastructure, both by guiding development to appropriate locations and phasing the opening up of new areas to match growth needs. As explained further in Section 10, the establishment of an urban reserve (UR) is an important zoning tool for phasing growth, thereby curtailing urban sprawl and ensuring sufficient time to install adequate services before development.

One of the objectives of this OP update is to find a way for the City to manage requests for land uses that have unique characteristics, special requirements, innovative ideas or because of unusual site constraints, require specific regulations.

Currently, Council has had to deal with such requests by up-zoning the property. This raises concerns as it opens the rezoned area up to any of the uses listed as permissible in that zone. Another technique would be to ‘spot zone’ the parcel. This would restrict changes to that parcel but does nothing to prevent other uses later on. As a result, a different approach is needed.

The Restricted Use Zoning (RuZ) category is a "custom made" or "fine-tuned" designation designed for one specific area or project only. It is still a legally bylawed land use zone and any changes to the uses or rules require the full public hearing redesignation process.

The RuZ is for a single use only, and restricts land use to a single purpose. All land use applications shall be evaluated on their merits by Council which will establish the appropriate development standards.

Council’s specific zoning policies are described in subsequent sections, but more general policies related to growth management are described below.

Policies

Council’s zoning control policies for urban growth management are to:

Reinforce the demarcation between urban growth lands and the agricultural zone by appropriate zoning of specific uses on each side of the boundary.
Zone sufficient and suitable development lands to satisfy all segments of market demand and to make the best use of scarce land resources.
Promote phased urban growth by setting aside some future areas within the UGB as urban reserve (UR).

5.7 Development ControlBack to Top

Development control of subdivisions and other projects contributes to sound urban growth management in an number of ways. For instance, continuation of the City’s present requirements for developers to pay their own servicing costs encourages cost-effective infrastructure and helps to curtail urban sprawl. Also, continued requirements for connecting nearly all new development to community water and sewer services, not only safeguards public health and environmental quality but promotes growth close to existing services. Likewise, continued requirements for developers to dedicate parkland or contribute a cash equivalent, helps to ensure that park provisions keeps pace with development. More details on parkland levies are provided in Section 9.

Policies

Council’s development control policies for urban growth management are to:

Require that all new development be connected to community water and sewer services, excepting farm buildings and rare situations of housing in agricultural zones where it is impractical to make such connections (see also Council Policy 6.1.2).
Maintain equitable cost-sharing by the City for oversized services to accommodate general community needs over and above developers’ responsibilities for servicing their own projects, as follows:
- generally, the City will have responsibility for the over-sizing costs of sewers, water and roads (but see .3 below)
- developers will have responsibility for the over-sizing costs of storm drainage, so as to not unfairly place a burden on the City if they elect to open up costly-to-develop sites.
Continue the existing Islands and Regulatory Appeals Commission (IRAC) principle of “orderly and following growth“, so that if a developer wishes to proceed immediately with an approved subdivision that is not adjacent to an existing serviced area, they are responsible for:
- all over-sizing costs for sewers, water, roads and storm sewers;
- off-site costs for connecting their project to City services.
Maintain an appropriate system of levies for developers to contribute to community park needs commensurable with the size of their development, either through:
- park dedications within the development site; or
- cash contributions for acquiring, expanding or improving City parks; or
- any combination thereof, subject to Council’s determination and selection of any park site dedication.

5.8 Capital PlanningBack to Top

Capital planning contributes to cost-effective infrastructure and community facilities by encouraging careful review and prioritization of project needs. A phased program of capital projects also promotes the timely expansion of services and facilities to keep up with growth. Details on capital planning are provided in Section 12.

Policies

Council’s capital planning policies for urban growth management are to:

Plan, design and budget City capital projects with sufficient lead times to facilitate orderly and properly serviced urban growth.
Promote collaboration with the Province on their capital planning for schools, medical facilities, transportation improvements, and inter-governmental funded infrastructure projects.

5.9 Secondary PlanningBack to Top

Secondary plans will be prepared for selected areas in the City which, upon approval by Council, will form part of the Official Plan. The purpose of secondary plans is to provide more detailed development guidelines for areas requiring special attention, because of such reasons as unique development potentials, diverse land uses, integration of road and servicing networks, acute growth pressures and environmental considerations. All secondary plans will be prepared with full participation by local residents and stakeholders. Secondary plans will promote efficient use of land and financial resources, as well as protect the natural environment. Also, by laying out development guidelines in advance, more security is provided for public and private investors. Secondary planning areas are described in Sections 6 and 7.

Policies

Council’s general policies for secondary planning are to:

Complete detailed secondary plans for areas requiring priority attention and to budget resources accordingly.

5.10 Summerside Region Special Planning AreaBack to Top

The City recognizes that its own growth management efforts could be seriously undermined if they are not parallelled by complementary regional action. If left uncontrolled, development around the City will: (1) erode agricultural lands in the region, (2) lure growth away from the City because of lower development standards and taxes, (3) erode the City’s tax base, and (4) cause additional outside residents to place more pressures on City services and amenities without necessarily paying for them. The City welcomes visitors from the surrounding region, but wants to collaborate with their neighbours in finding solutions to their mutual concerns.

Policies

Council’s policies for regional planning are to:

Support and expect the Province to maintain the buffer zone around the City of Summerside, until a more permanent regional planning solution is put in place.
In 2006, promote Provincial sponsorship of a locally-based, regional planning process, involving partnership with the City, neighbouring communities and the Slemon Park Development Corporation, to address common planning and growth management concerns.

SUMMERSIDE OFFICIAL PLAN 1998

(Revised May 2006)

PART TWO:

SECTORAL DEVELOPMENT POLICIESBack to Top

Section 6. RESIDENTIAL DEVELOPMENTBack to Top

The first part of this section describes general residential development policies pertaining to housing options, zoning categories and residential land allocations. The second part describes specific policies pertaining to special planning and development areas, and locations for high density housing. The third part deals with other residential issues.

GENERAL RESIDENTIAL POLICIESBack to Top

6.1 Housing OptionsBack to Top

The Planning Committee asked us to study if there could be a flattening of residential density types across the City and look at the use of site specific zoning. An important part of residential development within the plan is the assurance of a broad density of options for citizens. From a general land use perspective there is no way to eliminate high, medium or low density categories as part of the General Land Use Plan. However, there are possibilities in building more flexibility in our approach to zoning by broadening the allowable uses within a zone through the use of sub-categories. In this way there is more flexibility without exposing areas to the potential misapplication of ‘wide-open’ zoning or site specific zoning (which might create inconsistencies in the Land Use Plan). As a result, we will be looking at this option when the current zoning by-law is revised after approval of this Official Plan.

A broad diversity of housing options is promoted across the City to meet various segments of market demand. The following Table 6-1 was developed in the 1998 plan and remains unchanged. It shows the range of different housing types and lot sizes to be accommodated, which was determined after reviewing choices under the City’s four existing development control bylaws. ‘Semi-detached’ housing refers to buildings with two dwelling units divided vertically and ‘duplexes’ refers to buildings with two dwelling units divided horizontally.

Table 6-1 Housing Categories in Residential Areas
Residential Densities	Housing Type	Minimum Lot Size/ Residential Building
LOW DENSITY	Single-family Semi-detached Duplexes	7,500 sq. ft 10,000 sq. ft. 8,000 sq. ft.
MEDIUM DENSITY	Single-family Semi-detached Duplexes	5,000 sq. ft. 8,000 sq. ft. 7,000 sq. ft.
MEDIUM DENSITY - MOBILE HOME PARKS	Mobile homes (limited expansion)
HIGH DENSITY	Row houses Apartments

As shown on the above Table 6-1, options are provided for single-family, semi-detached and duplex homes at both low and medium densities. The General Land Use Plan (LUP) designates a number of growth areas for low density housing, mainly towards the periphery of the urban area. Medium density housing is presently restricted to the old Town of Summerside which is largely built up, but the LUP designates additional growth areas for residents wanting smaller lots. However, the issue of lot depth in our current zoning by-law should be re-examined due to smaller than standard lot sizes that exist in the City. Various sites are allocated for high density housing according to criteria described below. For reasons which are elaborated, no more land will be zoned for mobile home parks. All housing will be connected to community water and sewer services, with very limited exceptions in agricultural zones. National Building Code requirements for barrier free access by disabled persons will be applied in apartment buildings (as well as in all other applicable commercial and institutional buildings).

Policies

Councils’s general policies for housing options are to:

Promote a sufficient diversity of housing types, residential densities and tenure options to meet varied segments of market demand.
Require that all housing be connected to community water and sewer services, except that where it is impractical to make connections in an agricultural zone, onsite servicing may be utilized in compliance with minimum lot size requirements under the P.E.I. Planning Act.

6.2 Residential ZonesBack to Top

The General Land Use Plan (LUP) designates lands for low, medium and high density residential uses. The following Table 6-2 cross references these broad land use designations with specific zones which is reflected in the City’s development control bylaw. Provisions are made for five residential zones as well as a zone for comprehensive development areas (CDAs), which may include one or more housing categories in their mix of land uses.

Table 6-2. Residential Land Uses and Zones
RESIDENTIAL ZONES & CDA ZONE
	OFFICIAL PLAN RESIDENTIAL LAND USES
	LOW DENSITY			MEDIUM DENSITY				HIGH DENSITY
	Single family 700 sq. m (7,500 + sq.ft)	Semidetached 929 sq. m (10,000 + sq.ft.)	Duplexes 743 sq. m (8,000 + sq.ft.)	Single family 464 sq. m (5,000 + sq.ft.)	Semidetached 743 sq. m (8,000 + sq.ft.)	Duplexes 650 sq. m (7,000 + sq.ft.)	Mobile Home Parks	Row housing	Apartments
R-1
R-2
R-3
R-4
R-5
CDA

Policies

Council’s general policies for residential zones are to:

Maintain the comprehensive range of low, medium and high density residential zones to accommodate different housing options in various areas across the City.
Maintain the comprehensive development area (CDA) zone for promoting more innovative responses to unique development opportunities on suitable, large sites than is possible under normal zoning, including possibilities for:
1. a mix of residential, commercial, institutional and special uses as appropriate to each individual site;
2. mixes of housing types and densities;
3. innovative developments such as cluster layouts, zero lot line developments, and integrated residential/recreational concepts;
4. density transfer bonuses to allow higher residential densities in a portion of a site in return for the City receiving public open space and/or other concessions.

6.3 Residential Land AllocationsBack to Top

Special care was taken in projecting future residential land requirements because they will constitute a large proportion of total land needs. The projected land requirements take account of Summerside’s changing mix of housing types.

The trend in many urban housing markets nowadays is towards higher densities in response to population aging trends, smaller family sizes, and needs for affordable housing in the face of rising land and development costs. Summerside’s population will continue to become more elderly in the future, though this could be counterbalanced somewhat if the City is successful in retaining and attracting more working-age families (see Section 3). There are also many low-income families who need affordable housing. Nevertheless, only a moderate shift is projected in the future to more medium and high density housing, because Summerside’s housing stock already contains a high proportion of row housing and apartments. This is partly a legacy of the large housing estates that were built to serve CFB Summerside, notably the old base housing now operated by the Slemon Park Corporation, and Hillcrest Housing on Granville Street. There are also eight mobile home parks in the City. It is also noted that the results of the 2003 City Residents Survey indicate that many citizens favour single-family detached housing on larger lots over higher density housing forms. The following Table 6-3 projects how Summerside’s housing mix may change in the future, assuming the range of housing types and lot sizes shown in Table 6-1 above.

Table 6-3. Present and Projected Housing/Population Mix
Housing Type	% Total Households Residing in Different Housing Types
Housing Type	2001(1998 OP)	Projected 20-Year Growth
single-family	57% (58%)	LOW density = 50% MEDIUM density = 4%
semi-detached	9% (8%)	LOW density = 4% MEDIUM density = 8%
duplexes	4% (5%)	MEDIUM density = 6%
row housing	8% (4%)	HIGH density = 6%
apartments	15% (19%)	HIGH density = 22%
mobile homes	7% (6%)	limited increase
TOTAL	100%	100%

Based on the above, the estimates calculated in the 1998 Official Plan has proven to hold for the present. Therefore the housing mix, land use ratios that were estimated for how much additional residential land will be required to accommodate each 1000 persons of future population growth, with breakdowns for low, medium and high density housing have proven to hold relevance for this planning period. Assumptions were made about average lot configurations (lots with wider frontages require more land), and about desirable proportions of open spaces within residential neighbourhoods. The land use ratios represent gross residential land requirements, meaning that they include residential lots as well as allowances for special residential uses, neighbourhood commercial areas, local and major roads, and parks and greenways (but not including allowances for any new school sites). All the land use standards employed in making these estimates are on the generous side. The estimated residential land use ratios are shown on Table 6-4 below.

Table 6-4. Residential Land Use Ratios
Housing Density	Housing/ Population Mix	Gross Residential Densities (persons/acre)	Gross Residential Land Requirements/ 1000 persons
LOW	54%	7.4	73.0 acres
MEDIUM	18%	12.4	4.5 acres
HIGH	28%	16	17.5 acres
Totals	100%	9.5	105.0

Finally, the above residential land use ratios where applied to the medium population growth scenario described in Section 3, to project the City’s additional residential land requirements. The results of these calculations are shown on the following Table 6-5. The actual requirements shown on the table represent the land acreages needed to accommodate population growth over the next 15 years, i.e. the time horizon of the Official Plan. However, minimum growth targets are set for 20 years of projected growth to cover a sufficient growth margin for market choices and protection against inflationary pressures. Both the actual requirements and minimum growth targets include downward adjustments of 50 acres to account for currently vacant residential lots in the City. The growth margin between actual requirements and growth targets shown on Table 6-5 is 47%, which is substantially larger than the 25% margin commonly advocated for effective growth management.

Table 6-5. Gross Residential Land Requirements: MEDIUM Population Growth Scenario
Residential Density	Actual Requirements (15 years)	Minimum Growth Targets (20 years)	Growth Area Allocations
LOW	221	323	424
MEDIUM	43	64	113
HIGH	53	78	101
Totals	317 acres	465 acres	638 acres

Table 6-5 also shows the growth area allocations that are made on the General Land Use Plan (LUP). As can be seen, these comfortably exceed all the minimum targets for low, medium and high density residential housing. Indeed, the total allocation of new residential lands exceeds the minimum target by 37% (and exceeds the actual requirements by 100%). These comparisons do not count parts of special use areas which could be redesignated in the future for residential use (see section 9), or 138 acres of urban reserve (UR) lands set aside for accommodating long term growth (see Section 10).

Although the residential land allocations far exceed the targets, this reflects the fact that the new City is made up of four previous communities which have developed in their own ways and the importance which Council places on them continuing to prosper. However, as the City gains more experience with growth management it can carefully limit the expansion of additional growth areas. Of note in this regard, it is estimated that the present residential land allocations would still be more than sufficient in five years time for accommodating the next 15 years of growth, including providing for a sufficient growth margin.

Policies

Given the confirmation of the foregoing analysis, it is recommended that Council maintain the following policies:

Provide for an adequate supply of residentially-zoned lands to accommodate population growth over the next 15 years, including a sufficient growth margin for market choices and protection against inflationary pressures, as well as allowances for reasonable sharing by the communities who make up the new City.

SPECIAL AREAS AND HIGH DENSITY HOUSINGBack to Top

6.4 Special Planning and Development AreasBack to Top

A number of special planning and development areas are identified in the Official Plan, including secondary planning areas (SPA’s), comprehensive development areas (CDA’s), and concept layouts.

The purposes of each type of special area are as follows:

Secondary Planning Areas (SPA’s)

Secondary plans are an important component of the City’s growth management strategy. They will be prepared for selected areas needing detailed development guidelines, with full participation of local residents and stakeholders. Upon adoption by Council, secondary plans will form part of the Official Plan and any necessary zoning changes will be made.

Comprehensive Development Areas (CDAs)

It is Council’s policy to create a CDA zone to facilitate innovative developments on suitable sites, subject to comprehensive development plans being approved in each case. However, developers will have the option of initially outlining their intentions for later phases of development in less detailed concept plans. Council will only zone CDA parcels on application and not in advance, i.e. a so-called “floating zone.” It is expected that CDA proposals will often flow out of secondary planning. However, two potential CDA areas are pre-identified, but not approved in the Official Plan. They are not candidates for secondary planning because of being completely, or largely under single ownership (i.e. the equivalent level of detailed planning would be undertaken by the developer). CDA’s can also be used to facilitate ‘density transfer bonuses,’ which would be available to developers on a voluntary basis to allow a higher density of housing on a portion of a residential site than allowed under current zoning, in return for the City receiving public open space in another portion and/or other concessions. This could be of particular benefit to developers wanting to avoid expensive sewage lift station and forcemain installations in lower, difficult-to-service parts of their sites, which, instead, they could turn over to parklands. The negotiation of parkland concessions would also be weighed against parkland levies which otherwise would apply.

Concept Layouts

Concept layouts will be prepared for selected residential growth areas requiring special attention regarding coordinated road and other infrastructure networks, but where there are not the other land use complexities that would justify expensive secondary planning. Unlike secondary plans, intensive community participation would not be required and the completed concept layouts would be adopted as Council policies, rather than as part of the Official Plan.

The general boundaries of SPA’s, CDAs and concept layouts are shown on the following Figure 6-1, and the principle development opportunities and concerns in each area are illustrated on the following Table 6-6. Integrated harbourfront planning will be promoted within and between all special planning and development areas adjoining Bedeque Bay.

*please insert Map*

Table 6-6. Special Planning and Development Areas
Designated Area	Illustrative Opportunities and Concerns
Secondary Planning Area SPA No.1 (Downtown)	-- see Section 7: Commercial Development
Secondary Planning Area SPA No.2 (West End)	• recycling of non-heritage housing in older residential neighbourhood • capitalization on scenic views over Bedeque Bay, with protection of view corridors • inclusion of quality apartments over commercial space • rebuilding of Seawall incorporating a waterfront park linking the Lighthouse Trail with Downtown • remediation of odour problems on shorefront
Comprehensive Development Area CDA No.1 (Staffordshire Estates)	EXISTING • accommodation of part-lot row houses
Comprehensive Development Area CDA No.2 (Lefurgey)<	EXISTING • integration of part-lot, semi-detached houses into predominantly single-family residential neighbourhood
Comprehensive Development Area CDA No.3 (Lighthouse Shore)	• promotion of a mix of residential, commercial, institutional or special uses to realize the area’s full development potential • potential for integrated residential-golf course development • improvement of the Lighthouse Trail from Linkletter with connections to internal greenways and trails
Comprehensive Development Area CDA No.4 (Water Street East)	• promotion of a mix of residential housing forms and appropriate commercial uses, to act as a buffer between highway-orientated commercial development to the west around Reads Corner and single-family residential development to the east • internal greenways accessing Confederation Trail
Concept Layout No.1 (MacEwen East)	• integration of roads and other infrastructure networks • internal greenways connecting with Confederation Trail and with other trails leading to the Rotary Park area

Council may consider single, rather than mixed land uses on individual SRDC sites between South Drive
and Lighthouse Shore (See Council Policy 9.3.2), but this will not require approval of a CDA unless the
development is of an unusual nature or a density transfer bonus is involved.

Policies

Council’s policies for special planning and development areas are to:

Give priority to the City completing the following program of secondary plans and concept layouts:
- Secondary Planning Area SPA No.1 (Downtown)
- Secondary Planning Area SPA No.2 (West End)
- Concept Layout No.1 (MacEwen East)
Expand the City’s program of secondary plans and concept plans as required and with regard to available resources.
Adjust the boundaries of secondary planning and concept layout areas as required to suit particular circumstances.
Consider applications for comprehensive development area (CDA) zoning at two pre-identified sites in the Official Plan, i.e.
- Comprehensive Development Area No. 3 (Lighthouse Shore) for any mix of residential, commercial, institutional and special uses that realize the area’s full development potential; and
- Comprehensive Development Area No.4 (Water Street East) for a mix of residential densities and appropriate commercial uses, to serve as a buffer between the Reads Corner service commercial area and nearby singlefamily housing areas.
Consider applications for comprehensive development (CDA) zoning at other locations:
- future pre-identified sites in secondary planning areas (SPA’s);
- areas presently occupied by conforming mobile home parks (see Council Policy 6.8.5); and
- other area zoned for residential or commercial use where it can be demonstrated there would be no serious negative impacts on surrounding property owners and residents, City infrastructure or the natural environment, and subject to meeting Council’s concerns about adequate coordination with surrounding land uses.
Only zone CDA’s by application and then designate them accordingly on the Land Use Plan (LUP), i.e. sites will not be zoned in advance.
Process CDA applications under a two-step process involving:
- Council’s authorization of staff to commence negotiations with interested developers according to agreed preconditions; and
- Council consideration of any zoning submissions, subject to normal requirements for public notice and a public meeting.
Require Council-approved comprehensive development plans as part of CDA zoning approvals, but at Council’s discretion allow developers flexibility for responding to changing market trends by, first, granting preliminary approval of a general concept plan for the entire development site, and , then, following up with final approvals of detailed comprehensive development plans for separate phases of development as they proceed.
Consider ‘density transfer bonuses’ as part of CDA negotiations with developers to allow them a higher density of housing on a portion of a residential site than would be appropriate for the whole site (as reflected in the current zoning), in return for the City receiving public open space in another portion of the site and/ or other concessions, and according to the following principles:
- That developers enter such agreements voluntarily and enjoy a net gain in benefits compared with concessions, including consideration of comparative revenues from different housing programs, any savings in development costs, and parkland levies that would otherwise be applied (see Council Policy 5.7.4);and
- That failure to negotiate a mutually acceptable agreement will not prejudice either a developer’s subsequent application under current zoning, or Council’s right to refuse a rezoning application for higher density development outside of a CDA on the same site.
Consider applications for developments which conform with the current zoning in:
SPA’s prior to completed secondary plans, (ii) pre-identified CDAs which have not yet been approved, and (iii) areas scheduled for concept layouts (i.e. no freezes will be imposed), but promote integration of individual developments within a comprehensive planning perspective of the larger area.
Promote integrated harbourfront planning within and between:
- Special Planning Area SPA No. 1 (Downtown);
- Special Planning Area SPA No.2 (West End); and
- Comprehensive Development Area CDA No.3 (Lighthouse Shore).

6.5 Location of High Density HousingBack to Top

Council intentions about locating high density housing are important to residents concerned about potential intrusions of row houses and apartments into their predominantly lowdensity neighbourhoods. To help allay these concerns, Council lays out specific policies below on where they may allow future high density housing, some of which elaborate on their foregoing policies for special planning and development areas. Where applicable, these policies are implemented on the General Land Use Plan (LUP).

LOCATION CRITERIA:

Council’s criteria for locating high density housing in the City of Summerside include:

the desirability of infilling properties which are already partly developed for higher density housing
the desirability of locating high density housing close to jobs, community facilities and services, and of promoting pedestrian access
opportunities for capitalizing on scenic views through higher density and taller residential buildings (but with protection of adequate view planes)
benefits of locating higher density housing in difficult-to-service areas so that they can help defraying expensive development costs
opportunities for negotiating ‘density transfer bonuses’
opportunities for innovative mixes of high density housing with other residential development in CDA’s
opportunities for recycling older (non-heritage) residential properties with higher density development
opportunities for apartments in joint residential/commercial use buildings
avoidance of negative economic and physical impacts on surrounding land uses, whether existing or proposed.

Policies

Councils’ policies for locating high density housing are to:

Promote high density housing in areas designated for this purpose on the General Land Use Plan (LUP), as summarized below:
- properties already partly developed for high density housing;
Consider applications for high density housing in the following situations:
- as part of ‘density transfer bonuses’ in Comprehensive Development Area CDA No.3 (Lighthouse Shore) for developing waterfront parks and trails
- as part of a mix of housing types in other CDA’s.
rezonings in areas presently designated for medium density residential use, i.e.:
- Secondary Planning Area SPA No.3 (West End);
- areas presently occupied by conforming mobile home parks (see Council Policy 6.8.5);
- areas immediately north of the Downtown,(defined as Notre Dame Street on the North, to Granville on the East, Harbour Drive on the South and Duke Street on the West) subject to no harmful impacts on local heritage housing; and
within joint residential/commercial buildings (see Council Policy 6.12.2).
Only consider applications for high density housing in other situations with careful consideration of Council’s ‘location criteria’ listed above.

OTHER RESIDENTIAL ISSUESBack to Top

6.6 Permitted, Discretionary and Conditional UsesBack to Top

Some Summerside residents are concerned about possible intrusions of new residential uses into their neighbourhoods, such as boarding/rooming houses, group homes, senior citizens housing, nursing homes, tourist homes, home occupations, accessory apartments, garden suites and house conversions. A balance will be promoted in neighbourhoods by only allowing them as ‘discretionary’ or ‘conditional’ uses, as opposed to ‘permitted’ uses which are allowed by right in a zone. Discretionary uses are subject to notification of local residents, a public hearing and Council approval. Conditional uses require a special permit from the Development Officer stipulating conditions of approval, and which may be terminated by Council for non-compliance. In some cases, uses are only allowable on both a discretionary and conditional basis, i.e. so-called ‘discretionary/conditional’ uses.

>Experience over the past five years has shown that there is considerable confusion over discretionary and conditional uses. In addition, many applications have required both, conditional and discretionary approvals before an approval can be granted. Given that Council is the final arbitrator for such land use issues, it is proposed that we simplify and standardize the process. A review of the discretionary/conditional approval list, contained in the City’s Zoning By-law is required. It will be a priority item when that review is undertaken.

A number of other residential issues are also described below, relating to individual ownership of multiple housing units, mobile homes, and mixed residential-commercial buildings and zones.

6.7 Mobile HomesBack to Top

A distinction is made here between mobile homes and ‘manufactured homes,’ the latter being built in off-site factories but in accordance with current City building standards and of compatible appearance with conventional subdivision housing. Under these conditions manufactured homes are synonymous with ‘single family,’ ‘semi-detached’ and ‘duplex’ dwellings, as the case may be. Mobile homes (including ‘mini home’ and ‘modular home’ variants) are largely located in mobile home parks in the City, although there are a few located on private residential lots in the former community of Wilmot. There are six conforming mobile home parks in the City which are generally of a high quality, as well as two non-conforming parks which include trailers.

For the following reasons, no more land will be zoned for mobile home parks:

The City’s housing stock already includes a large share of mobile homes, some of which will become available over time to new owners or tenants (and, doubtless, some older units will be replaced with newer ones).
Other housing alternatives are available in the City for meeting various housing needs, i.e.
- there is a large supply of available rental housing
- Council policies for broadening medium density housing zones in the City will facilitate building houses on smaller and less expensive lots, e.g. in the case of single-family homes, a minimum lot size of 5,000 sq. ft. as compared with 7,500 sq. ft. for low density housing
- Council policies on multiple housing will facilitate home ownership of individual semi-detached homes or row houses (and condominium apartments and duplexes are an option)
- Council policies provide for the option of locating factory manufactured homes in residential neighbourhoods, in place of traditionally constructed housing
- Council policies enhance opportunities for mixed residential-commercial buildings
- Council policies facilitate adding accessory apartments in suitable single-family buildings
- Council policies for garden suites will enable some occupants of single-family homes to accommodate their in-laws on the same lots
- Council policies confirm and rationalize opportunities to convert existing houses for additional dwellings.

Thus, Council’s concern is to promote a balance in the City’s future housing stock between mobile homes, which are presently in large supply, and other housing choices. Policies

Council’s policies for mobile homes are to:

Restrict mobile homes/mini homes to mobile home parks.
Not expand zoning for mobile home parks, except in the case of expanding an existing conforming mobile home park into contiguous property already under the same ownership as the existing park as of the effective date of the Official Plan, March 27, 1998, subject to Council discretion on each individual application. [amended Dec.11,2003]
Allow mobile home parks which are presently zoned for that purpose to continue as conforming uses and, where applicable, to expand up to the limits of their present zoning.
Leave existing mobile home parks which are not zoned for that purpose as nonconforming uses.
Entertain rezoning applications for converting conforming mobile home parks to other medium or high density residential uses, or to comprehensive development areas (CDA’s).
Allow the option of factory manufactured homes in any applicable residential zone, provided that they comply with all current City building standards and are of compatible appearance with conventional subdivision housing.

6.8 Special Residential UsesBack to Top

‘Special residential uses’ include boarding/rooming houses, group homes, senior citizens housing and nursing homes. The City’s present development control bylaws vary considerably in how they allow or disallow some of these uses in different residential and institutional zones. Particular problem have occurred in cases where special residential uses are narrowly restricted to high density residential zones, because some local residents may be more concerned about opening the door to possible apartment buildings in their neighbourhood than they are about the special use in question. However, other residents may feel that some special residential uses do not fit with the character of their lower density residential neighbourhood. Thus, Council’s concern is to achieve an appropriate balance between: (a) limiting some special uses in low/medium density zones with consideration of local residents’ concerns; and (b) permitting some special uses by right in high density residential zones and institutional zones.

Policies

Council’s policies for special residential uses are to:

Allow as discretionary/conditional uses:
- group homes and nursing homes in any residential zone; and
- boarding/rooming houses and senior citizen housing in any medium density residential zone.
Allow all special residential uses as permitted uses in high density residential zones.
Allow senior citizens housing and nursing homes as permitted uses in general institutional zones (see Council Policy 9.1.1).

6.9 Tourist Homes (Bed and Breakfasts)Back to Top

The part time use of private residences as tourist homes is becoming an important component of Summerside’s tourist industry. The Province is responsible for ensuring that all new tourist homes are of high standards and, accordingly, empowers Quality Tourist Services (QTS) to both apply the standards of the P.E.I. Tourism Industry Act (No. EC559/94) and the ‘Canada Select’ star rating system to all tourist homes. Thus, Council’s concern is not so much with regulating the quality of tourist homes as it is with ensuring that they fit in with local neighbourhoods.

Policies

The Councils’ policies for tourist homes are to:

Promote tourist homes as a valuable component of Summerside’s tourist industry.
Allow tourist homes as a discretionary/conditional use in any single-family house within any residential zone, provided that they are operated by the home occupant.
Allow tourist homes as a conditional use in any single-family house within any commercial or agricultural zone, provided that they are operated by the home occupant.

6.10 Home OccupationsBack to Top

There is expanding interest in home occupation uses because of such trends as increasing numbers of small companies, more outsourcing by larger companies, flexible employeremployee arrangements, and the flexibility afforded to “footloose businesses” in the knowledge-based economy. Indeed, the promotion of home-based businesses is becoming an important issue for local economic development. However, home occupations can also present problems, including concerns by neighbours about loss of enjoyment of their residential properties (typical concerns being increased traffic noise and street parking), as well as the difficulties of drawing a line between appropriate home occupations and other uses that are more of a commercial or industrial nature (with the attendant risk of requiring too much staff discretion for making choices). Thus, Council’s concern is with achieving a balance between promoting valid home occupations as a local economic resource and protecting local residents from any undesirable impacts of their operations.

Policies

Councils’ policies for home occupations are to:

Promote home occupations for the valuable contribution which they can make to Summerside’s future economic development.
Define allowable home occupations as closely as possible to minimize the need for discretion by City staff.
Approve allowable home occupations as conditional uses in houses and ancillary buildings, provided that they are operated by the home occupant and do not occupy more than 25% of the floor space of the dwelling (or the equivalent in the case of an ancillary building), but with no allowable variances.

6.11 Mixed Residential-Commercial BuildingsBack to Top

There are a number of advantages to mixed residential-commercial buildings, such as providing affordable housing (possibly for the commercial operator), supplementing the financing of the commercial operation, and promoting more vitality and public safety in commercial areas after closing hours. A distinction is made in Council’s policies between: (a) commercial buildings with ‘ancillary commercial residences’; and (b) ‘joint residential/commercial buildings’ where residences make up the primary use. The first situation could include commercial buildings with up to two apartments and the second situation involves commercial space at grade with a number of residential storeys above. Council’s concern is with enabling more flexibility for mixing residential and commercial uses in buildings.

Policies

Council’s policies for mixed residential-commercial buildings are to:

Allow commercial development as conditional uses in joint residential/ commercial buildings within the Downtown, and service commercial zones, and high density residential and comprehensive development zones, provided that:
- residences make up at least two-thirds of the building floor space; and
- the commercial uses are located on the ground floor and they continue to fall within a list of allowable uses that are compatible with the primary residential nature of the building.

6.12 Mixed Residential/Commercial ZoningBack to Top

The trend in these areas is generally away from housing and towards more commercial uses, but there are large number of remaining quality homes. It would not be good policy to promote more housing in the area, other than mixed residential-commercial buildings. Council’s concern is for existing homeowners to have the options of being able to convert their properties into commercial use or to continue their houses as conforming uses.

Policies

Council’s policies for mixed residential/commercial zoning are to:

Maintain the commercial zoned area on Water Street East to include the areas presently zoned for mixed residential and commercial uses, but confirm all existing residences as conforming uses throughout the enlarged commercial area.

6.13 Accessory ApartmentsBack to Top

An accessory apartment is a secondary dwelling unit that is clearly secondary to the primary single-family use of a building, and which is divided from it by a fire separation wall. Council’s concern is to enable accessory apartments as an affordable housing option. Policies

Council’s policies for accessory apartments are to:

Allow accessory apartments as conditional uses in single-family homes within any zone, except those reserved exclusively for single-family use.

6.14 Garden SuitesBack to Top

Garden suites are separate structures in the yards of single-family homes that provide a means for residents of the main house to accommodate elderly, close relatives who need their continuing care. They can provide an option to accommodating in-laws within the same house or in an accessory apartment. Because garden suites are used to cover special cases of hardship, they cannot be used later for rental purposes and require special enforcement provisions. Councils’ concern is to enable in-law garden suites that are compatible with residential neighbours.

The 1998 Official Plan required the demolition of the garden suite when it is no longer needed. This requirement has been dropped from the current Official Plan. We have retained the five year renewal requirement so Council can monitor the stock of housing.

Policies

Council’s policies for garden suites and accessory apartments are to:

Allow garden suites as discretionary/conditional uses in the rear yards of conforming single-family homes with sufficiently large lots in any residential zone, provided that they are suitable structures which fit in with the surrounding neighbourhood and share services with the principal residence, and subject to a 5-year renewable agreement with the City.
Allow garden suites as conditional uses in the yards of single-family homes with sufficiently large lots in a commercial or agricultural zone, provided that they share services with the principal residence, and subject to a 5-year renewable agreement with the City.

6.15 House Conversions for Additional DwellingsBack to Top

The policies below were established in the 1998 Official Plan and have been reaffirmed in this plan.

Policies

Council’s policies for house conversions are to:

Generally, allow conversions of residential buildings into a greater number of dwelling units, but only if the new types of housing forms are permitted uses in the residential zone in question and subject to application of all the usual zoning and subdivision requirements, as well as conformity with current City building standards.
As an exception, allow greater flexibility for conversions in the case of designated heritage buildings, but within the limits and safeguards of an approved heritage protection bylaw and accompanying “overlay” zone, which specifies allowable variations from the primary zoning of the properties in question.

Section 7. COMMERCIAL DEVELOPMENTBack to Top

The first part of this section describes general policies for promoting a functional system of commercial areas across the City. The second part describes more specific policies relating to the development of each area. The third part deals with commercial policies on sign control and zero lot line development, as well as general policies on building heights and development agreements.

GENERAL COMMERCIAL POLICIESBack to Top

7.1 Commercial Areas and ZonesBack to Top

Summerside has extensive commercial areas which provide a broad variety of goods and services to City and regional residents, tourists and other visitors. The commercial sector is an important component of the local economy and tax base. According to the 2001 Census, 75.3% of Summerside’s work force were employed in the tertiary services sector.

The principle thrust of Official Plan policies are to guide the physical development of Summerside’s commercial areas so that they can become as competitive as possible. To this end, a functional system of convenient and inviting commercial areas will be promoted across the City, each tailored to their respective target markets.

The City’s major commercial areas includes: the Downtown, North Granville, Water Street East, Reads Corner, and St. Eleanors Corner areas, with smaller commercial areas in the West End and on South Drive.

There are also various neighbourhood commercial areas throughout the City, and some others may be added in the future. Each of the major commercial areas contains considerable growth potential, whether by infilling of vacant parcels, intensification or upgrading of existing commercial sites, or conversions from other uses. Some 548 acres of commercial lands are designated on the General Land Use Plan (LUP). The amount of lands designated comfortably exceeds projected needs for commercial lands over the 15-year time horizon of the Official Plan. With limited exceptions, it is Council’s policy to promote infilling of existing lands before opening up new commercial areas.

The 1998 Official Plan created a clustering of complementary land uses in each commercial area that suited its particular focus. Each area’s selected focus reflected its historical evolution and present makeup of businesses, as well as the desirability of grouping commercial uses together that share similar characteristics respecting building scale, traffic and parking requirements, visual appearance, and relative compatibility with adjoining land uses. The grouping of complementary land uses in each commercial area was guided through application of five commercial zones under the City’s development control bylaw, i.e. downtown commercial, large format retail commercial, service commercial, highway commercial and limited commercial.

After review, this current Official Plan proposes to reduce the five zones to three.

The former Large Format Retail Commercial (C2), Service Commercial (C3) and Highway Commercial (C4), will be amalgamated into a single Service Commercial (C2) zone.

The current Downtown (C1) and Limited (Neighbourhood) Commercial (C5, renamed to C3) will be maintained.

7.1.1 RationaleBack to Top

After five years of ongoing experience with the application and administration of the five zone model, it was seen that little difference existed between the Service and Large Format Zones. Development along Granville Street North, where the C2 and C3 zones were prevalent, resulted in extensive re-zoning and amendments to accommodate growth and development.

This lack of differentiation between Large Format and Service Commercial offered little flexibility to respond to development needs. The end result was that unnecessary barriers were placed in the path of development along the Granville Commercial section.

As a result, there is little to justify the continuation of the C2 Large Retail Commercial zone.

With respect to the Highway Commercial Zone (C4), it is also recommended that it be eliminated and amalgamated into the Service Commercial Zone. There are sufficient developmental controls built in to the Service Commercial Zone to adequately manage development along the highways.

By combining the three former zones in to one, the City will be simplifying and streamlining the overall development process. This will result in greater flexibility in managing commercial development.

Each commercial area focuses on one or two commercial zones, as summarized on the following Figure 7-1 and Table 7-1. However, the General Land Use Plan (LUP) will only distinguish between the Downtown and all other commercial areas, both for sake of simplicity and to accommodate some flexibility in detailed zoning.

Table 7-1 Commercial Areas and Zoning Focus
COMMERCIAL AREAS	COMMERCIAL ZONES
COMMERCIAL AREAS	C1 Downtown Commercial	C2 Service Commercial	C3 Limited Commercial
Downtown
North Granville
Water Street East
South Drive
Slemon Park
Reads Corner
St. Eleanors Corner
West End
Neighbourhood Areas

Following are the general purposes and scope of each, new commercial zone and Council’s general commercial policies:

C1 Downtown Commercial Zone

This zone will accommodate a traditional mix of downtown uses, including retail commercial, professional, business, cultural, entertainment and government, which mutually benefit from their proximity to each other in a central City location and, together, promote a cohesive community focus. Although some Downtown businesses may provide for part or all of their own parking needs, many of them rely on shared parking. Joint residential/commercial buildings (where the residential use is primary) and ancillary residences in commercial buildings will be permitted in the Downtown, but will require their own parking.

C2. Service Commercial Zone

This zone will accommodate a broad array of small and medium size commercial uses which need road frontage for ready vehicular access and advertizing exposure. Representative uses include strip malls, small supermarkets, retail and personal service stores, automobile sales and service operations, hardware stores/lumber yards, garden shops and tourist-related activities. Generally, service commercial businesses provide their own parking, though parking is shared in the case of strip malls. Joint residential/commercial buildings and ancillary commercial residences will be permitted in service commercial zones.

C3. Limited Commercial Zone

This zone will accommodate small amounts of commercial uses in primarily residential neighbourhoods. All new uses in limited commercial zones will require a public hearing and Council’s discretionary approval, including changes between uses or additions of uses, to ensure their compatibility with surrounding housing. Also, measures will be required to minimize nuisances from traffic and parking. Representative uses include convenience stores, personal services shops and unlicenced restaurants. Ancillary commercial residences will also be permitted.

Policies

Council’s general policies for commercial development are to:

Promote a functional system of convenient and attractive commercial areas across the City to each serve their respective target markets, i.e. Downtown, North Granville, Water Street East, Reads Corner, St. Eleanors Corner, West End, South Drive and various neighbourhood commercial areas.
Implement a system of commercial zones in the City’s development control bylaw to promote appropriate clustering of complementary uses in each commercial area according to their function, including downtown commercial, service commercial, and limited commercial zones.
Promote a focus in each commercial area on particular commercial zones as follows:
- Downtown area -- downtown commercial zone;
- North Granville area -- service commercial zone;
- Water Street East, South Drive and Slemon Park areas -- service commercial zone;
- Reads Corner and St. Eleanors Corner areas -- service commercial zone;
- West End and Neighbourhood areas -- limited commercial zone.
Promote commercial development in:
- designated commercial areas on the General Land Use Plan (LUP);
- future areas designated for commercial uses under a Council approved secondary plan (but see .5 below);
- future sites for limited commercial uses that are compatible with residential neighbourhoods; and
- sites designated for commercial uses within a Council approved comprehensive development area (CDA) plan.
Generally, with the exception of neighbourhood commercial areas and CDA’s, promote the infilling of existing lands before opening up new commercial areas.
Promote high development standards for Summerside’s commercial areas to compete in the market place, including quality commercial buildings and landscaped parking areas, convenient vehicular and pedestrian access, and appropriate signage.

COMMERCIAL AREA POLICIESBack to Top

7.2 Downtown Commercial AreaBack to Top

The City of Summerside’s Downtown is located around Water Street and Harbour Drive. It is Council’s policy to undertake secondary planning for the area and it is designated as Secondary Planning Area SPA No.1 (Downtown). Upon approval by Council, the secondary plan will form part of the Official Plan and will provide detailed planning guidelines for the area’s future development.

The Downtown encompasses a broad mix of commercial, professional, business, entertainment, cultural and government functions that cater to the needs of City and regional residents, as well as to tourists and other visitors. An older downtown area is located along Water Street, but a newer downtown area has developed to the south on largely land filled sites, under the auspices of the Summerside Regional Development Corporation (SRDC). Although some properties have their own parking lots, many of them share use of City or SRDC parking lots. Attempts at upgrading old downtown properties have only been moderately successful and some significant redevelopment opportunities remain to be exploited in the future, notably the exciting potentials offered by the historic Holman Department Store (now called Dominion Square). There are also considerable potentials for intensifying uses within the new downtown area.

The following recommendations made in the 1998 Official Plan were not implemented but merit a reaffirmation for the following reasons:

there is need for better coordination between various stakeholders in future development of the area
Harbour Drive effectively severs the area in two and particularly inhibits north-south pedestrian access
the large parking lots in the area present a “blank, unfriendly, appearance,” which could be ameliorated by more landscaping and tree planting
there is inadequate, attractive open space along the waterfront
there is potential for developing a Waterfront Trial with connections to the Confederation Trail and the Lighthouse Trail (and, it can be added, that linkages could be made with walking routes through the heritage housing district).
consistent and attractive signage and light fixtures should be developed throughout the area.

Therefore, at the core of Council’s concerns for the Downtown is the need to undertake secondary planning within an integrated perspective of both the old and new downtown areas, coupled with the need to immediately simplify development control procedures.

Policies

Council’s policies for development of the Downtown Commercial Area are to:

Continue to focus a broad mix of commercial and other uses in the Downtown area which are essential to maintaining its vibrant urban character.
Complete planning for Secondary Planning Area SPA No.1 based on an integrated approach to the old and new downtown areas, the waterfront and adjoining heritage housing district.
Implement simplified, interim development controls in the Downtown until a secondary plan is put in place, i.e.
- Continue the permitted uses that can be approved by the Development Officer; and
- The list of discretionary uses requiring Council approval where there could possibly be significant impacts on the Downtown in terms of parking, public safety or character, including applications for any joint residential/commercial buildings.

7.3 North Granville Commercial AreaBack to Top

The growing commercial area around North Granville Street includes the County Fair Mall and the Atlantic Superstore. The area has good access to nearby Highway No. 2 and contains a number of large, vacant development sites. Thus, much of it is well suited for accommodating more large format retail stores with big building envelopes and extensive on-site parking. Indeed, it would be difficult to locate such developments elsewhere in the City. Parts of the area west of Granville Street are better suited for service commercial uses because of their small lot sizes and there are already some service commercial uses there, such as fast food restaurants, which complement the nearby retail centres. As shown on the General Land Use Plan (LUP), there are extensive areas designated around the North Granville commercial area for higher density housing, but good separation is generally preserved between commercial and lower density housing areas. Recent developments have seen an expansion of the Country Fair Mall with a larger Sobey’s. Plans are underway for the redevelopment of the former Holland College site, including commercial and higher density residential development.

It is therefore, imperative to maintain and improve road access for the North Granville commercial area so that it can effectively serve City residents, as well as regional and larger markets. Of particular importance is the need to maintain good access onto Highway No. 2 from both Granville and Central Streets, and to improve internal east-west road connections between them and other areas of the City (road infrastructure needs are described in more detail in Section 12). Convenient pedestrian access is also needed, especially given the large surrounding areas designated for residential development.

Therefore, Council’s central concerns for the area are to protect and enhance its suitability for retail operations along with supporting service commercial uses, as well as to maintain good vehicular and pedestrian access, and quality urban development standards.

Policies

Council’s policies for the North Granville Commercial Area are to:

Reserve the area primarily for retail commercial uses, together with supporting service commercial uses.
Promote good vehicular access to the area by:
- retaining both the Central Street and Granville Street accesses onto Highway No.2;
- improving east-west road access across the City along the Pope Road axis, with connections south to Water Street East;
- providing for an additional east-west road allowance between Central Street and Granville Street, north of Pope Road; and
- Consider requiring rear access roads for all new commercial developments along Highway No.2.
Require that future, east-west road access is reserved through the designated commercial area north-east of Granville Street and Walker Avenue, to allow for further commercial expansion over the very long term (i.e 15+ years).
Provide for convenient pedestrian access to the commercial area from surrounding housing areas.
Promote high urban design standards for commercial buildings and spaces.
Require and promote more landscaping and tree planting to improve the appearance of Granville Street and to break up the monotony of large parking lots.

7.4 Water Street East Commercial AreaBack to Top

This commercial strip extends out from the Downtown along both sides of Water Street East. As discussed in Section 6, it is Council’s policy to apply commercial zoning to the whole area and to confirm existing residences as conforming uses (see Council Policy 6.13.2). Businesses along the street can be characterized as “service commercial,” requiring road frontage for ready vehicular access and advertizing exposure. The area has considerable commercial infill capacity, including possible conversions from residential uses and more intensive or upgraded use of existing commercial sites.

There are also problems with traffic congestion on Water Street itself, due to its multiple functions of being the City’s eastern gateway and its primary east-west internal connector, as well as providing frontage for many businesses. The sidewalk is not at the standard required for an arterial street and although the road generally has a 100' right-of-way, this narrows to only 66' in some parts.

Based on past trends, Council has particular concerns about a potential scenario of future strip development expanding eastwards along Water Street and joining with a similar westward extension from the Read’s Corner commercial area. Such a scenario is undesirable because it would: (1) present an unattractive gateway for visitors to the City, (2) further exacerbate traffic congestion on Water Street, (3) threaten some fine areas of single-family housing, (4) endanger the ecologically rich, Gillespie Creek wetlands, and (5) obstruct a very scenic and unique view plane over Bedeque Bay.

As described in Section 6, the area south of Water Street is included within Secondary Planning Area SPA No.2 (Glover Shore). Some of the concerns and opportunities which will be addressed during secondary planning for this area directly effect the Water Street commercial strip, notably its interfaces with residential areas, potentials for quality apartments over commercial space, and routing of a road parallel to Glover Shore to service new development and to relieve congestion on Water Street.

Therefore, Council’s central concerns for the area are to promote its attributes for servicecommercial development, including improving its attractiveness as the City’s eastern gateway, curtailing strip development and improving traffic circulation.

Policies

Council’s policies for the Water Street East commercial area are to:

Maintain the area for service commercial uses (but also protect existing residences as conforming uses).
Control strip development from extending further along Water Street East by maintaining a firm eastern commercial boundary short of Gillespie Creek (but confirm two motels to the east as conforming uses).
Improve Water Street East by enlarging the right-of way to 100' for its whole length.
Take traffic pressures of Water Street by:
- providing for a road parallel to Glover Shore and south of Water Street;
- restricting the number of driveway accesses for new businesses and, where possible, promoting combined driveways between existing businesses; and
- not permitting flag lots or easements for rear lots with direct road access on to Water Street.
Require and promote more landscaping and tree planting to improve the appearance of Water Street and to break up the monotony of parking lots.

7.5 South Drive Commercial AreaBack to Top

The primary use of the strip along Notre Dame is residential and the non-residential sites are more of an industrial than commercial nature. The frontage along Greenwood Drive is entirely in industrial use. There are significant wetlands around the ‘Ice Pond’. However, there are service commercial areas on South Drive which should be maintained in this use. There is also an existing neighbourhood commercial area at the corner of Notre Dame Street and Greenwood Drive which should be maintained for limited commercial uses (see Council’s policies below for neighbourhood commercial areas).

Therefore, Council’s central concerns for the area are to rationalize the limits of commercial use designations to areas which are suited for that purpose and to avoid unsightly strip development.

Policies

Council’s policies for the South Drive commercial area are to:

Maintain the remaining zoned commercial areas on South Drive for commercial use.
Further review commercial development options as part of detailed planning for Secondary Planning Area SPA No.2 (West End).

7.6 Reads Corner Commercial AreaBack to Top

Reads Corner’s strategic location at the intersection of Water Street East and Highway No.1A makes it suitable for commercial businesses, and it can be expected that the area’s importance will grow because of traffic from the Confederation Bridge. Reads Corner can also serve as a neighbourhood commercial centre for nearby residents.

However, adjacent residential areas need to be protected from undue commercial impacts. A discussed above, Council will consider applications in Comprehensive Development Area CDA No.4 for a mix of residential densities and appropriate commercial developments, to serve a buffer between the Reads Corner commercial area and nearby single-family housing areas (see Council Policy 6.4.4b). Considerable care is needed to avoid creating such a large commercial centre at Read’s Corner that tourists are deterred from going Downtown and, similarly, commercial development should not be allowed south of Reads Corner where it could intercept customers.

Therefore, Council’s central concerns for the area are to promote its viability for commercial uses, while also ensuring adequate interfacing with nearby residential areas.

Policies

Council’s policies for the Reads Corner commercial area are to:

Reserve the area primarily for commercial uses, including some neighbourhood commercial functions to serve the needs of local residents.
Balance demands for commercial land with needs to protect surrounding residential areas and to avoid intercepting visitors from going to other attractions in the City by restricting further commercial development south of the Reads Corner commercial area and subject to Council’s review of the appropriateness of the development.

7.7 St. Eleanors Corner Commercial AreaBack to Top

This area is well suited for highway commercial use because of its strategic location around the intersection of South Drive and Highway No.2. It can also serve as a neighbourhood commercial centre for residents at the north-west end of the City.

Therefore, Council’s central concerns for the area are to promote its viability primarily for commercial use, while also ensuring adequate interfacing with nearby residential areas.

Policies

Council’s policies for the St. Eleanors Corner commercial area are to:

Reserve the area primarily for service commercial uses, including some neighbourhood commercial functions to serve the needs of local residents.
Rationalize the boundaries of the area in order to protect residential areas, minimize the number of accesses onto Highway No.2, and facilitate access to commercial businesses by local residents.

7.8 West End Commercial Area

The West End has some of the best redevelopment potentials of any area in the City, because of its beautiful views over Bedeque Bay and the fact that some local houses are nearing the end of their useful lifecycle. Presently, the entire frontage along Water Street is zoned for general commercial purposes, but actual commercial development is haphazard and some properties are run down or vacated. There are also numerous commercial “spot zones” in the residential area between Water Street and Notre Dame Street, but many of the properties in question are now used for housing and others have incompatible commercial or industrial uses.

As described in Section 6, the area is included in Secondary Planning Area SPA No.2 (West End). The opportunities and concerns to be addressed in preparing a secondary plan for this area include recycling of older (non-heritage) housing, capitalizing on scenic views over Bedeque Bay with protection of view corridors, building quality apartments over commercial space, incorporating a waterfront park and the Lighthouse Trail, with connections to Downtown. Consideration may also be given to allowing some compatible, tourist commercial uses.

Therefore, Council’s long term concerns for the area are to promote realization of its full redevelopment potentials and, in the short term, to discourage any contrary developments which may detract from those potentials.

Policies

Council’s policies for the West End commercial area are to:

Manage commercial zoning along Water Street to include only properties which are confirmed to be actively used for approved commercial purposes or where there are commercial buildings currently for sale.
Examine long-term commercial development potentials in the area as part of detailed planning for Secondary Planning Area SPA No.2 (West End).

7.9 Neighbourhood Commercial AreasBack to Top

Neighbourhood commercial areas provide convenient services to surrounding residents. It is desirable to zone all approved neighbourhood commercial areas for limited commercial uses, meaning that all changes of use are subject to Council discretion to ensure their compatibility with surrounding residential neighbourhoods. Therefore, Council’s central concerns with neighbourhood commercial areas are to promote a balance between providing convenient shopping while protecting residences from undue nuisances from commercial operations.

Policies

Council’s policies for neighbourhood commercial areas are to:

Manage all confirmed neighbourhood commercial properties for limited commercial uses, requiring Council’s discretionary approval of any future changes in use to ensure that they are compatible with the primarily residential use of the area.
Only consider applications to zone commercial sites in residential neighbourhoods for limited commercial purposes.

OTHER DEVELOPMENT ISSUESBack to Top

7.10 Commercial Sign ControlBack to Top

In light of Summerside’s reliance on tourism, excessive signage can seriously diminish an area’s attractiveness and reputation among visitors. Also from an economic perspective, escalating competition between businesses to have their own signs “stand out in the crowd” can have the dysfunctional result of confusing, rather than informing potential customers. Thus, on a number of counts effective signage control is good for community appearance and business.

Off-site signs have posed particular problems for the City, because any approvals could prompt a landslide of similar requests. On the other hand, it is recognized that potential visitors need to be given every encouragement to enter the City.

Therefore, Council’s concerns are to promote better signage control for safety, aesthetic and economic reasons, and in accordance with contemporary best practices.

Policies

Council’s policies for controlling commercial signage are to:

As a general principle, vary maximum allowances for sizes and height of signs between different commercial zones, with consideration of respective traffic speeds, and building scales and setbacks.
Restrict the allowable number of on-site signs for each individual business to no more than two signs, including one each of ground, pole, canopy, fascia wall and projecting signs, but with special allowances for corner and through lots (but see .3 and .4 below).
Not permit pole signs in neighbourhood commercial areas, and offer a size bonus in all other zones for ground signs relative to pole signs.
Limit shopping centres, strip malls, and other similar developments to one group identity sign with no pole or ground signs for separate businesses, including when they are divided by zero lot lines into separate ownership.
Discontinue provisions for exceptions on sign control and have no variances.
Require immediate removal of all abandoned and unlawful signs.

*Insert Map Figure 7-1 here*

Promote coordinated signage for the Downtown and for the heritage housing district.

7.11 Zero Lot Line Commercial DevelopmentBack to Top

There are demands for mixed individual ownership of commercial buildings outside the Downtown, particularly in the case of strip malls (somewhat analogous to the demands for individually-owned multiple housing units described in Section 6). However, there are special considerations which apply in the case of commercial buildings outside the Downtown, including needs to retain side yards at the end of buildings and to avoid multiple highway accesses (often, Downtown buildings extend up to the sidewalk and do not have their own parking). Condominium arrangements are an option for all commercial buildings and, indeed, are a necessity if the ownership is to be divided horizontally.

Policies

Council’s policies for zero lot line commercial development are to:

Require that all individual commercial units constructed for, or converted to individually ownership be separated from other adjoining units in the same buildings by masonry or concrete ‘fire walls’ with a minimum two hour fire resistance as defined under the National Building Code, including at the ends of buildings which may be extended in the future.
Continue allowing zero lot line development in the Downtown, including discretion on whether to require surrounding yards.
In all other commercial zones, allow zero lot lines along the interior vertical divisions of commercial buildings subject to:
- requirements for front and rear yards, and side yards between the ends of buildings and streets;
- requirements for integrated parking lots and combined road accesses for the entire building, including for future expansions.

7.12 Building HeightsBack to Top

Currently, a 60 foot limit is in place in the City. The current R4 designation limits height to 48 feet for apartment buildings (or higher at Council’s discretion). A review of the original 60 foot limit was set by the height of the available fire fighting equipment. However, this need not be a limiting factor if higher stories of buildings are properly equipped with sprinklers, stand pipes, fire hydrants, compressors, an emergency elevator, etc. There would be advantages to allowing some higher buildings, including creating a more interesting skyline, exploiting scenic views and making the best use of valuable development sites.

Policies

Council’s policies for building heights are to:

Allow higher building heights up to sixty feet in the Downtown, service commercial and high density zones, but also allow buildings more than sixty feet in any of these zones as discretionary uses subject to Council’s consideration of their impacts on surrounding land uses(both present and future), and on water views and other important view corridors, traffic generation and fire safety.

7.13 Development AgreementsBack to Top

The following section is deleted from the 1998 Official Plan as the Province no longer requires reviews of ‘major developments’ in the Planning Act.

Section 8. INDUSTRIAL DEVELOPMENTBack to Top

This section describes Council’s policies for industrial development, including promotion of a functional system of special purpose industrial areas across the City.

8.1 Industrial Areas and ZonesBack to Top

There are a number of areas across the City zoned for industrial use, including two large areas located respectively around Greenwood Drive (which includes the Summerside Industrial Park) and around Harvard Street. Other industrial zones include a large area in St. Eleanors south of Highway No.2, the ADL Amalgamated Dairies site south of Reads corner on Highway No.1A. There is also a growing aerospace industry in Slemon Park, outside the City boundaries.

Council’s intent is to promote a functional system of special purpose industrial areas which are each suited to attracting quality industries in their respective market segments. The City’s future industrial areas are shown on the General Land Use Plan (LUP) and total about 440 acres. They include all presently zoned industrial lands and additions to the Greenwood Drive industrial area. There will be three industrial zones in the new City development control bylaw that focus respectively on ‘light,’ ‘marine’ and ‘heavy’ industrial uses. The locations of each industrial is shown are following Table 8-1 and their zoning focus is shown on the following Figure 8-1.

*insert Map figure 8-1 here*
Back to Top

Table 8-1 Industrial Areas and Zoning Focus
INDUSTRIAL AREAS	INDUSTRIAL ZONES
INDUSTRIAL AREAS	M1 Light Industrial	M2 Marine Industrial	M3 Heavy Industrial
Greenwood Drive Industrial Area
Harvard Street Industrial Area
ADL Site (Highway No.1)
Summerside Harbour
St. Eleanors Industrial Area

The general purposes of each industrial zone are described below:

M1 Light Industrial Zone

Four areas are designated for light industry: the ADL site on Highway No. 1A, the largely developed Harvard Street industrial area, the Greenwood Drive industrial area which does have large vacant sites and will be further expanded in size, and the heavy industrial zone at St. Eleanors where light industries will also be permitted. Representative light industrial uses include the manufacturing, processing and assembly of products (excepting those constituting “noxious” heavy industrial uses, as described below), as well as heavy machinery and equipment sales and repairs, and recycling depots (but not scrap yards). As in other industrial zones, some supporting commercial uses can be included for the convenience of local industries and their workers, such as business management offices, office suppliers and coffee shops. There are existing uses in some areas which do not fall within the range of light industrial uses, but these are recognized as conforming under the 1998 Official Plan.

The Greenwood Drive industrial area has been expanded in two places. First, a strip at the south end of Greenwood Drive has been rezoned from commercial to industrial use, to better reflect the nature of existing businesses in that area. Second, a large vacant parcel to the west of Greenwood Drive and south of the Confederation Trail, which had been zoned partly for general industrial use and partly for low density residential use, is now reserved completely for light industry (OP 1998). There are other vacant industrial lands to the east of Greenwood Drive. However, it needs to be examined how long Greenwood Drive can satisfy the City’s industrial growth needs until the St. Eleanors industrial area is opened up. Also, a connecting road is needed between Greenwood Drive and South Drive (there are presently no east-west connections in this part of the City between Pope Road and Notre Dame Street).

M2 Marine Industrial Zone

This covers the existing Waterfront industrial area adjacent to Downtown. Many industrial harbourfronts are being adapted nowadays to also include commercial uses (often tourist orientated), and it is desirable to have a special industrial zone which can accommodate such mixes. The potential for mixed development is also one of the reasons why the harbourfront area is included in Secondary Planning Area No.1 (Downtown). Representative industrial uses include ship loading, boat and marine supplies and sales, and fish processing, and representative commercial uses include restaurants, retail stores and farmers/fish markets.

M3 Heavy Industrial Zone.

Both light and heavy industries are accommodated in the St. Eleanors industrial area south of Highway No.2. This zone accommodates heavy industries that could be considered potentially noxious by such criteria as noise, fumes, smell, and risk of fire, spills and ground contamination. Representative heavy industrial uses include bulk storage, fish and food processing, feed mills, construction plants and yards, and scrap yards. Their approval will be subject to Council discretion, taking into consideration potential impacts of the proposed industry and consequent requirements for mitigative measures, both of which may have to be determined through impact studies. Light industries are allowed in a heavy industrial zone as permitted uses.

The St. Eleanors industrial area is well suited for heavy industrial uses because of its: (1) proximity to Highway No.2, (2) reasonable separation from residential neighbourhoods, (3) location away from sensitive environmental resource areas, and (4) present lack of development, other than the Curran and Briggs construction yard. Also, the area is presently zoned industrial. It is costly to service the area with water and sewers (see Section 12), but it is still the best choice for heavy industry as there are no alternative sites which offer the same advantages and are significantly less costly to service. Potential heavy industries wishing to locate in the City will have to await the necessary infrastructure at St. Eleanors, but in the interim light industries can continue to be accommodated in the Greenwood Drive industrial area. In any event, the City will only extend infrastructure to the area at sufficient capacity to accommodate normal service users. Any industries which will place extraordinary demands on sewage disposal, such as some food processors, will have to add their own treatment facilities. Scheduling of services for St. Eleanors needs to examined in light of the limited capacity for accommodating industrial growth elsewhere in the City.

Policies

Councils policies for industrial development are to:

Maintain the range of zones for light, marine and heavy industrial uses.
Promote a functional system of industrial areas, each focussing on a particular industrial zone as follows:
- Greenwood Drive and Harvard Road industrial areas, and the ADL site
- Summerside Harbour area -- marine industrial zone;
- St Eleanors industrial area -- heavy industrial zone, including light industrial uses; and
In light industrial zones, promote appropriate industries as permitted uses along with supporting commercial businesses.
In marine industrial zones, promote marine-related industries as permitted uses, together with certain permitted commercial uses that will enhance the attractivenes of the harbourfront for residents and visitors.
In heavy industrial zones:
- promote heavy industries subject to Council’s discretion, taking into consideration potential impacts on environment quality, public health, and servicing requirements and consequent requirements for mitigative measures, which Council may require to be determined through impact studies to be completed at cost to the developer and to the City’s satisfaction;
- promote supporting commercial businesses as permitted uses.
In light industrial and heavy industrial zones:
- promote accommodation of industries in quality industrial par developments;
- require appropriate buffer strips where industrial or commercial uses either:
  1. adjoin any other non-agricultural zone (except where a commercial use in an industrial zone adjoins a commercial zone); or
- Support continuing development of Slemon Park for aerospace and other “hightech” industries
- Further examine the City’s industrial needs as part of its ongoing preparation of its Economic Development Strategy, including possible needs for a warehouse industrial area, the adequacy of remaining growth capacity at the Greenwood Drive industrial area, the need for timely extensions of infrastructure to the St. Eleanors industrial area, and resolution of City boundary issues respecting Slemon Park (see Section 13).

Section 9. INSTITUTIONAL, PARKLAND AND SPECIAL USE AREASBack to Top

This section describes Council’s policies for institutional, parkland and special use areas.

9.1 Institutional AreasBack to Top

Following is an overview of the large variety of institutional facilities serving the City of Summerside. Most of the uses which are listed are designated on the General Land Use Plan (LUP) as institutional uses, with the exception of those located in the Downtown and commercial areas where some institutional uses will be allowed. The City is well equipped with institutional facilities, but any possible additions or improvements that are being planned or considered are identified below.

Education

The Provinces’s Western School Board administers all public schools in the City. There are seven public schools, each of which includes extensive playing fields:

Athena Consolidated
Elm Street
Parkside Elementary
Greenfield Elementary
Summerside Immediate
Three Oaks Senior High School
Centre Scholaire et Communitaire de Summerside

The School Board’s Facilities Strategic Plan identifies school needs for accommodating projected enrolment increases up to the year 2004. The only major school project was the replacement of the Athena school with a new, 450 enrolment facility on nearby provincial property at the corner of Ryan Street and MacEwen Road.

Holland College, which is the Province’s community college system, offers a number of programs in various facilities across the City and at Slemon Park.

Marine Centre - marine and fisheries industries
Summerside Centre - variety of vocational programs (Downtown)
Slemon Park Centre
School of Justice - Atlantic Police Academy
Aircraft Maintenance (outside the City)
Construction and Carpentry

There are also a number of private sector training institutions, including the College of Piping which provides Celtic arts training, and several kindergarten and daycare programs.

Health

The City’s health facilities include the new Prince County Hospital. Other health facilities include the East Prince Health Centre, the Summerside Medical Centre in the County Fair Mall, which will be expanded with the renovations underway at the County Fair Mall, Harbourside Medical Centre and two seniors’ manors.

Government

The City’s government facilities include the City Hall, the adjacent Armouries building, the municipal works yard which houses Municipal Services, and two community centres, including one at St. Eleanors and another in Wilmot. The area around the City Hall also includes the police building and main fire station (and a subsidiary fire station is housed in the St. Eleanors centre). Ambulance services are privatized. Provincial facilities include the East Prince regional service centre and the federal government is represented by the Post Office, the Human Resource Development Centre and the GST Centre.

Recreation, Culture and Religion

The City’s recreation facilities include the Summerside Recreation Centre, and the Pool located in the Wellness Centre. Private recreational facilities include the Silver Fox Curling and Yacht Club, the YMCA, the Summerside Golf Club in nearby Linkletter, and the nearby Slemon Park Sports Centre. The City is very well equipped with cultural facilities, including the Wanda Wyatt Centre which houses the Jubilee Theatre and the Eptek Exhibition Centre, the Lefurgey Cultural Centre, the Rotary Library which occupies the old railway station, and the Silver Fox museum. Additional attractions are being considered to support tourism, including the possibility of a historical theme village. Summerside has numerous churches.

Utilities

City utilities with extensive sites include the Wilmot well field , two central water tanks, the wastewater treatment plant and the electrical plant. Maritime Electric has a large substation on Highway No.2.

Policies

Council’s policies for institutional lands are to:

Allow education, health, government, public recreational, cultural, and religious uses, and senior citizens and nursing homes as permitted uses in a general institutional zone, but consider applications for certain uses such as municipal and private utilities, jails and correctional centres as discretionary uses.
Allow permitted institutional uses in the Downtown zone and a smaller range of permitted institutional uses in service commercial zones.
Consider limited institutional zoning for specific parcels within residential neighbourhoods to accommodate small institutional uses (that may typically use all or part of a recycled residence), such as halfway houses, group homes and other social service facilities, subject to Council’s discretionary approval of each individual use.
Allow day cares with up to 50 children as a permitted use in the institutional zone and allow day cares with less than 7 children as home occupations.

9.2 ParklandsBack to Top

Under the development control bylaw, public parks have their own zone (rather than be grouped with institutional uses), and existing public parks are designated for that purpose on the General Land Use Plan (LUP). The City of Summerside contains a variety of parks which total 172 acres, including the Confederation Trail. The largest are Queen Elizabeth Park with three lighted ballfields, two tennis courts and seating for 1,000 persons, and Leger Park with four tennis courts and a participark. There are many other smaller parks near the Downtown and in residential neighbourhoods, and there is also a green belt along the All Weather Highway in west St. Eleanors.

Council will continue applying park levies to developers, either through: (a)park dedications within the development site, or (b) cash contributions for acquiring, expanding or improving parks, or (c) any combination thereof, subject to Council’s determination and selection of any park site dedications (see Council Policy 5.7.4). The Summerside Recreation and Green Plan has been developed for Council’s guidance to assess where and what types of parks are needed, and how monies can be best spent on improvements.

The City is fortunate to have a portion of the Island’s Confederation Trail pass through its boundaries, which is constructed along the abandoned CNR right-of-way and is part of the Trans-Canada Trail system. The Trail links through to Tignish at the western end of the Island and, on the other side, continues eastwards to Kensington. Eventually it will be linked through to other completed sections near Charlottetown and the eastern end of the Island, thanks to the efforts of the Island Trails organization. All of the Confederation Trail is presently under provincial jurisdiction and it needs to be examined whether the City should request taking over control of their portion.

There are also exciting opportunities for further developing a Waterfront Trail at the west side of the City, which would follow along Bedeque Bay as closely as possible. This would build on the work already completed on the “Light House Trail” by the Bedeque Bay Environmental Management Association (BBEMA), and could be extended to provide a continuous trail into the Downtown as part of improvements for rebuilding the seawall. Connections can also be made between the Waterfront Trail and Confederation Trail and then onto other trails through the City, with links to some parks and school sites. Also, the City is investigating the possibility of implementing flood greenways along watercourses and drainage areas, for the dual purposes of containing high seasonal run offs and contributing to a linear park system. Components of such a linear park system could also be provided through higher parts of conservation areas (see Section 10).

Policies

Council’s policies for parklands are to:

Allow public parks, trails/linear parkways, flood greenways and greenbelts as permitted uses in a parks zone.
Maintain the dedicated park fund from developers’ parkland cash levies and the receipts of selling any surplus parklands, which will be reserved solely for acquiring, expanding or improving parks or trails (but not for park operations and maintenance, or for special events).
Implement the Recreation and Green Plan to lay out priorities for park acquisition, improvements and operations, and to provide guidelines for the best application of park levies, including consideration of the following:
- needs for different types of active and passive parks to serve changing population distributions and age compositions;
- opportunities for joint use of public parks and school playing fields to serve overall community needs;
- implementation of a greenway system which integrates together parks and school sites with connecting linear parks and trails;
- future jurisdiction options for the Confederation Trail; and
- necessary amendments to the Official Plan

9.3 Special UsesBack to Top

Under the development control bylaw, a separate zone has been created for special uses which cannot be easily accommodated in other zones because of their unusual nature, and which may have specific land use planning requirements. Existing special uses designated on the Land Use Plan (LUP) include the portion of the Summerside Airport lying within the City, as well as the Summerside Raceway and land to its north where horses are pastured for harness racing. Other potential special uses could include full size and Par 3 golf courses, riding academies, campgrounds and private parks.

The lands of the Summerside Regional Development Corporation (SRDC) between South Drive and Lighthouse Shore are also designated for special use on the LUP, because future development plans for the area are unknown at this time. Eventually, SRDC lands could be used for special uses themselves, or for residential, commercial, or institutional uses, which would require re-designating applicable sites on the LUP for the use in question.

Policies

Council’s policies for special use areas are to:

Allow discretionary/conditional uses in a special use zone with any land use planning conditions being determined to suit individual circumstances, including airfields, large recreational commercial developments, private parklands and any other uses that Council determines cannot be accommodated suitably in another zone.
Reserve the SRDC lands between South Drive and Lighthouse Shore for special uses subject to specific approvals as in .1 above, but also consider applications for redesignating lands to accommodate residential, commercial, or institutional uses, or mixes of uses within a Comprehensive Development Area (CDA) .

Section 10. AGRICULTURAL, URBAN RESERVE & CONSERVATION AREASBack to Top

This section describes Council’s policies on agricultural, urban reserve and conservation areas.

10.1 Agricultural AreasBack to Top

The City of Summerside’s approach is to promote agricultural sustainability and head off potential, urban-rural conflicts through proactive growth management practices. Council’s integrated growth management strategy is overviewed in Section 5, and includes an urban growth boundary (UGB), zoning and development controls, and capital, secondary and regional planning. The centerpiece of the Council’s efforts to manage agricultural land is the UGB, which has been located to accommodate sufficient lands for urban growth on its internal side.

The policies described below for agricultural lands focus on the use of zoning and subdivision control powers. It is noted that the 1997 Round Table Report recommends ‘that all municipalities with an official plan adopt a bylaw requiring developers to set aside sufficient land for a buffer where proposed residential, commercial, or industrial development borders on agricultural lands ....” (Recommendation 63, p.109). Whereas it would be impractical to set aside successive rings of buffers around the edges of new development as the City expands outwards, Council will require a single buffer line along the UGB when future developments border onto the agricultural zone.

Policies

Council’s policies for agricultural lands are to:

Generally, retain an agricultural zone to support sustainable agriculture and forestry, and implement measures for reducing potential conflicts attendant on converting agricultural lands to urban uses.
Allow small “farm gate” operations for direct sales of local agricultural products, but otherwise not allow commercial or industrial uses to locate in an agricultural zone even if they are agriculturally-related (but, instead, locate them in appropriate commercial and industrial zones).
Control conversions of agricultural lands to urban uses in such a way as to minimize conflicts with farming operations, by:
- only allowing subdivisions into an agricultural field where there are reasonable expectations that all, or most of the field will be completely developed within the near future and;
- promoting subdivision boundaries between urban and agricultural properties which minimize potential resident-farmer conflicts, i.e. avoidance of “saw tooth” boundaries, subdivisions through the middle of fields, and development surrounding fields.
Require adequate separation distances between the respective locations of new intensive livestock operations (including permanent feedlots, large piggeries and poultry operations) and existing urban uses, and, similarly, between new urban uses and existing intensive livestock operations, as well as require application of safe manure practices, all in conformity with applicable Provincial standards.
Require suitable riparian buffer zones adjacent to water courses in conformity with applicable Provincial standards.
Consult with local farmers and their representative organizations about maintaining and improving responsible farming practices near to built up areas, including safe spraying operations, selective operating hours and advance notice to nearby residents of any potentially hazardous farming operations.
At Council discretion, consider zoning exceptions in the Agricultural Zone to accommodate a family need for adding one more single-family dwelling than would be allowable under normal zone standards, as long as there are no unduly negative impacts on long-term sustainable agriculture, either incrementally or accumulatively, and subject to any other conditions which Council may apply.
[amended May 8, 2003]

10.2 Urban Reserve (UR)Back to Top

The purposes of the urban reserve are to phase urban expansion in a way which reduces potentials for urban sprawl and to allow sufficient time for providing necessary services. The only permitted uses in the Urban Reserve will be agriculture and related residential uses. Two urban reserve areas have been designated on the General Land Use Plan (LUP), totaling 138 acres. The first area is located east of MacEwen Road where there is already considerable land allocated for residential growth. The second area is located in west St. Eleanors where water services are being upgraded and need to be completed for fire protection before any more urban expansion can take place (see Section 12).> Eventually, UR lands will be probably be redesignated for low density housing, or, depending upon market demand, some of them could be required for medium density housing.

As demonstrated in Section 5, there are already more than enough lands reserved for residential development on the LUP. Specifically, there are 638 acres of residential growth lands, which exceeds the minimum growth targets required for accommodating projected population growth by 37%. These minimum growth targets are sufficient to accommodate fifteen years of growth over the time horizon of the Official Plan, plus another five years of population increases as a growth margin for market choices and protection against inflationary pressures. Indeed, the amount of designated residential growth areas exceeds actual requirements by 100%.

Council has the option of excluding long-term growth areas from the UGB, but, instead, elects to include them as an urban reserve until such time as they needed for future growth (it is estimated that this could be more than ten years from now). This approach has the advantage of informing property owners in the UR that their lands will eventually be designated for urban development.

Policies

Council’s policies for the Urban Reserve (UR) are to:

Retain lands within the urban reserve until such time as they needed for urban growth and, where applicable, infrastructure is sufficiently upgraded, whereupon the land will be redesignated on the General Land Use Plan (LUP) for residential purposes, or other uses that may be considered desirable at the time.
Limit interim uses on urban reserve lands to agriculture, forestry and related residential uses, but allow a smaller minimum lot size for subdivisions than that required in the agricultural zone.
Restrict new residential uses within the urban reserve to single-family homes on existing and new lots, and to temporary in-law garden suites under the same conditions as in agricultural zones (see Council Policy 6.15.2), and promote the siting of permanent buildings in such a way that they do not compromise the development potential of surrounding lands for eventual urban use.

10.3 Conservation AreasBack to Top

Conservation areas are intended to cover situations on privately owned lands where local environmental conditions are considered to be: (a) hazardous to development, and/or (b) vulnerable to damage by development. Where such lands are owned by the City or are intended to be acquired in the immediate future for public purposes, they would be designated as parkland (see Section 9). The General Land Use Plan (LUP) presently designates five conservation areas which are shown on the following Figure 10-1 and listed below:

Compton Creek wetlands on Malpeque Bay
Platte River floodway north of Pope Road and west of Central Street
Ice Pond wetlands west of Greenwood Drive
Reads Creek wetlands near Reads Corner
Gillespie Creek wetlands south of Water Street West.

As outlined in Section 9, it is Council’s Recreation and Green Plan for the City focuses on implementing a linear park system, which could include public trails on higher portions of flood greenways and wetland areas. However, Council does not commit to create public parks in the five areas identified above, and nothing in this Official Plan should be construed as implying any such intention.

Policies

Councils policies for conservation areas and surrounding areas are to:

In all conservation areas:
- if necessary, adjust the boundaries of conservation areas from that presently shown on the General Land Use Plan (LUP) to better reflect
- not allow any development on conservation lands because of hazards to development and/or the environment;
- not allow filling or culverting of permanently flowing water courses and ponds; and
- require sufficient buffer strips for developments where they abut conservation areas.
Additionally in the watershed area surrounding the Gillespie Creek wetlands conservation area:
- require sufficient buffer strips for developments where they abut permanently flowing water courses and ponds; and
- require careful site planning throughout the area to the City’s satisfaction for minimizing harmful impacts on wetlands, watercourses and ponds, and for accommodating local trails to link northwards to the Confederation Trail and the ‘Fox Run Trail.’
Review coastal management jurisdictions and responsibilities with the Province.

Section 11. HERITAGE PRESERVATIONBack to Top

11.1 Preservation of Heritage BuildingsBack to Top

Heritage preservation is important for cultural and esthetic reasons, and for housing supply and economic development purposes. Heritage buildings provide symbolic continuity between the past and the present, and provide an attractive counterpoint to modern buildings. Renovations of older buildings can provide valuable housing for less cost than new construction. Also, they create more construction jobs because the work is more labour intensive, and may lead to exportable businesses and skills in building restoration. Heritage preservation improves the City’s attractiveness to tourists and opens up potentials for businesses in heritage houses, such as tourist homes, small restaurants, retail stores, and artist studios and galleries. Experience shows that heritage designations often increase property values.

The City has many, fine heritage houses which are a legacy of its early shipbuilding days and the later Silver Fox industry that made millionaires of many local entrepreneurs. Most of these houses are located in a district north of the Downtown and encompass a rich variety of Colonial Revival, Queen Anne Revival, Georgian and Gothic Revival styles. The Summerside and Area Historical Society in their 1995 Summerside Heritage Preservation Report surveyed 46 heritage homes in the area (along with a number of public buildings) and proposed that the City adopt a bylaw for their preservation. Also, the 1996 City Residents Survey confirmed strong community support for the idea of a heritage preservation bylaw.

The Province has it own Heritage Places Protection Act of 1991, but heritage protection is one of the powers devolved under the City of Summerside Act. Council prepared a heritage preservation plan and bylaw for the City of Summerside (SS-20). Preparation and implementation of the plan and bylaw is guided by a City Heritage Advisory Board with Council and citizen representation, who provides continuing recommendations to Council. The Board builds on the previous work of the Summerside and Area Historical Society and will coordinate extensive public consultation.

The heritage bylaw (SS-20) employs an “overlay” zoning approach which specifies variations from the underlying zoning that apply to designated heritage buildings (as inventorized in a GIS-referenced registry). Overlay zoning variations will take two forms:

The first variation address special building regulations for heritage housing maintenance, alterations, additions and demolitions.
The second form of overlay zone variations provides special incentives to owners of heritage homes, such as greater flexibility for conversions into additional housing units (see Council Policy 6.16.2), and concessions for operating commercial businesses out of heritage buildings, including the possibility of reduced on-site parking requirements.

Existing control bylaws continue to be enforced in the area, such as the City’s unsightly premises bylaw, in order to ensure that other local properties do not detract from investments made into heritage buildings.

Although the bylaw focuses on the heritage housing district, one of the issues addressed in Secondary Planning Area SPA No.1 (Downtown) will be the future of commercial heritage buildings. Also, this secondary planning will take an integrated approach to development of the Downtown, waterfront areas and the adjoining heritage housing district, including the desirability of pedestrian linkages between all three areas (see Section 7). It is possible that the Downtown secondary planning could result in additions being made to the heritage preservation bylaw.

Policies

Council’s policies for heritage preservation are to:

Maintain, review and update, as needed, the City’s Heritage By-Law

PART THREE:Back to Top

IMPLEMENTATIONBack to Top

This section describes infrastructure strategies for servicing present and future development, which will lay the groundwork for subsequent preparation of a five-year capital plan.

12.1 GeneralBack to Top

Detailed engineering studies were done in tandem with preparing the Official Plan, both to identify infrastructure constraints when selecting development areas and to identify necessary capital projects for implementing the Plan.

Five categories of infrastructure are included:

Roads
Water Supply and Distribution
Sewage Collection
Storm Drainage

Three categories of capital planning and construction projects are distinguished as follows:

Category 1: projects required to meet current needs and to service “short term” population growth over the next five years

Category 2: projects required to service “long term” population growth up to fifteen years

Category 3: projects required to service “very long term” population growth beyond fifteen years.

It is emphasized that projects are categorized 1, 2, or 3 according to preliminary demographic and engineering assumptions about when they will be needed. However, the final selection, timing and details of approved projects will be determined through capital planning by Council of the day.

The engineering analyses of future growth needs are based on estimated saturation population levels for 22 residential areas across the City, as well as projections on how quickly they may infill with growth in each five-year period over the next twenty years. The population infill projections give consideration to each area’s present level of development, relative size and designation for either low, medium or high density housing on the General Land Use Plan (LUP). The overall limits on population growth are set by the City’s medium growth scenario described in Section 3. Identified infrastructure projects are elaborated and substantiated in detailed engineering studies. Where available, cost estimates are included for category 1 projects in 1997 dollars. The cost estimates are generally of an “order of magnitude” level, though some of them are predicated on more detailed cost breakdowns. Prior to any formal capital planning, all existing estimates should be further investigated and refined, and detailed investigations completed on all other projects.

Policies

Council’s policies for infrastructure are to:

Complete a 5-year capital plan for roads, water supply and distribution, sewage collection and treatment, and storm drainage, which builds on the infrastructure strategies reviewed in the Official Plan.

12.2 RoadsBack to Top

*Insert figure 12-1 Map*

The City of Summerside contains over one hundred (100) kilometres of streets of which most are shown on the following Figure 12-1. They are classified by function into three classes according to the Transportation Association of Canada (TAC) system, as follows:

Arterials
- Water Street East
- South Drive / Water Street West
- Harbour Drive
Urban Collector
- Water Street (Downtown)
- Bayview Avenue
- Pope Avenue
- Ryan Street
- Notre Dame / Harvard Street
- Central Street
- Granville Street
- MacEwen Road
Urban Local Streets:
- All other streets within the City.

Detailed modelling analysis was undertaken of 15 intersections across the City where significantly increased traffic loads could be expected. This analysis was used for identifying needed road improvements, as well as for selecting future development areas in the Official Plan. For instance, only limited urban expansion is contemplated east of Highway No.1A at this time, so as to generally curtail sprawl development and to avoid putting undue pressures on the Reads Corner and the Water Street/MacEwen Road intersections. However, considerable road improvements are still needed to meet current demands and, even more so, to accommodate future growth.

Growing traffic volumes around the North Granville Area are of particular concern. North Granville is a natural commercial growth area for the City and the region, and already contains two, large shopping centres. The Official Plan carries forward the present zoning for further commercial development in the area and makes two small additions. As described in Section 7, a substantial part of the area is reserved for large format retail commercial operations and, indeed, it would be difficult to locate such developments elsewhere in the City. Substantial amounts of service commercial development will also be accommodated in the North Granville area. Also, large areas will be developed with higher density housing around the commercial core. In all, substantial traffic growth can be expected. Using computer modelling, it is projected that traffic volumes in the North Granville Area will increase by 20% over the next ten years and by 50% over the next twenty years. In addition, the new Prince County Hospital has located off Granville north.

It should also be noted that this does not take into consideration any developments not foreseen at the time the Official Plan was drawn up.

In order to accommodate future growth in the North Granville Area, it is necessary to both> maintain good accesses from the All Weather Highway for regional traffic and to improve east-west access within the City for local traffic. The City’s traffic problems cannot be resolved simply by diverting more and more local traffic onto the All Weather Highway. It would be poor public policy to actively promote dangerous mixing of cars, trucks and traffic speeds on a road specifically designed to be a major Provincial arterial highway. However, there is presently no good east-west connector across the City between the All Weather Highway and Notre Dame/Harvard Street. The result is that increasing numbers of vehicle trips are being made along local residential streets which cannot be upgraded practically to urban collector standards, causing problems of increasing traffic in residential neighbourhoods and danger to pedestrians.

Consideration was given to accommodating the City’s internal traffic needs by extending Pope Road out from Granville Street to MacEwen Road, with the possibility of a further extension beyond MacEwen Road and a connecting loop road southwards to Water Street East. This objective was partially achieved with the reconstruction of Ryan from Granville to MacEwen as a result of the expansion of the County Fair Mall. The loop road would serve the dual purposes of improving access to the North Granville area and of diverting some traffic away from Water Street, which is the other most congested traffic area in the City (using computer modelling, it is estimated that a new loop road could divert 30% of westbound traffic away from the busy intersection of Water Street East and MacEwen Road).

The proposed Pope Road extension was carefully reviewed in light of the Western School Board’s intentions of building the new Athena school at the corner of Ryan Street and MacEwen Road. The Official Plan Committee still came to the conclusion that the Pope Road extension would be preferable over other options for reasons of both traffic circulation and pedestrian safety. However, the Committee withdrew their proposal because they did not want to delay the school project and because of public concerns expressed about a collector road running south of the new school site, which would cut the school off from the Holland College ballfield and other provincially-owned lands. In fact, with the re-alignment of Ryan Street, the collector will run to the north of the school. Under the revised plan, and until another solution can be found, Ryan Street will continue to serve as the major connector between Granville Street and MacEwen Road at the north end of the City. However, it is necessary to upgrade the Ryan Street/MacEwen Road corner with a large radius curve. This was completed in 2004 Also, the realignment of the intersection of Pope Road and Central Street has been completed in 2005.

The following Table 12-1 summarizes an initial list of road projects that were identified in the 1998 Official plan. They are identified as necessary according to preliminary engineering analyses and on the revised assumption of not extending Pope Road. It can be seen that phased improvements are needed to some key intersections over time to accommodate projected growth, though, in some instances, cost savings could be gained by undertaking two phases at the same time. Also, it is strongly emphasized that a successful solution still needs to be found for accommodating east-west traffic through the middle of the City and this will have to be considered in any future road planning. This will be dealt with in the East-West Connector Planning Study scheduled for 2006.

Table 12-1 Projected and Completed Road Projects
Road/Intersection	Category 1 current needs/ 5-years growth	Category 2 up to 15-years growth	Category 3 beyond 15-years growth
East Water St.	Resurfaced from Read’s Corner to Gillespie in 2005 - ongoing improvements needed
Water St./Reads Corner	traffic signals and road reconfiguration was completed in 2004	further improvements
Pope Av./Central St. road straightening - to do. traffic signals - completed in 2005	further improvements
Pope Av./Granville St.		traffic signals completed in 2005
Granville St./ Highway No.2	traffic signals - completed in 2003		further improvements
Water St./Central St.	improvements - made in 2004		further improvements
Water St./MacEwen Rd.			improvements
Water St./ Harbour Drive			improvements
Central St./ Highway No.2			traffic signals and highway improvements - need under review
North Drive/ Highway No.2		traffic signals and extra lanes completed in 2002- 2003

Not listed on Table 12-1 are important right-of-ways (ROW’s) which have to be acquired for

A route will be reserved for a connecting road from the Greenwood Drive industrial area through to South Drive.

Also of note, the City’s prioritization of sidewalk improvements along roads will continue to give consideration to the special needs of disabled persons.

12.3 Water Supply and DistributionBack to Top

The City of Summerside’s water system supplies both domestic and fire protection water to virtually all residences and businesses within City boundaries. It comprises three original systems which were combined together after the City’s amalgamation, including: (1) the Town of Summerside wells, piping systems and standpipe, (2) the Community of St. Eleanors wells, piping systems and pressure storage, and (3) the recently constructed Summerside Area Water Commission system involving a major well field in Wilmot, and distribution mains throughout Wilmot and peripheral areas of the former Town of Summerside and the Community of Sherbrooke. Because these systems were built somewhat independent from each other and often as development proceeded, there are a number of deficient areas within the City with respect to proper fire flow protection and looping.

The main criteria used in assessing the adequacy of water supply and distribution are fire protection requirements. Specifically, minimum fire flows were specified for each type of land use zone in accordance with Insurance Advisory Organization (IAO) Standards. Modelling of existing flow levels were taken into consideration when selecting areas for development in the Official Plan, as well as for identifying necessary infrastructure improvements. For instance, the west St. Eleanors area has low fire flow pressures and consequently is temporarily held in the urban reserve (UR). Work completed in the 2004- 2005 timeframe has partially been met by adding a line from South Drive to Briggs. This may meet the need for residential uses. Industrial uses are still not met.

Infrastructure improvements required to bring the area up to acceptable standards are included below. Also included are infilling of subdivisions where five or more lots are presently unserviced.

The list of water projects identified as necessary under preliminary engineering analyses are summarized below:

Category #1 for current needs and 5-years growth:

Necessary improvements are identified in areas on the west side of the City for upgrading of mains and/or looping to provide proper fire protection. Some of the improvements are needed for upgrading the water supply in west St. Eleanors with a line on West Drive from South Drive to Briggs as referred to above.
Investigations may be needed into water infrastructure systems in and around Slemon Park to assess possibilities for coordinated servicing strategies with the City. This option has not been actively discussed in the six years since the 1998 Official plan introduced the discussion. It should also be noted that some work has been done by the Slemon Park Corporation for their own needs.
The Bluebell Subdivision requires some looping with larger mains if the possibility is to be accommodated for further eastern expansion. This was budgeted in 2005 but was not started. This work on Maple Grove Road will be held over to 2006.
Placement of water main on Water Street between West Street and Notre Dame Street as well as McKenzie Drive and Seaweed Road
Miscellaneous water loopings and other upgrades/improvements
Water well upgrades and Well Field protection.
Phased replacement of aging cast iron water mains.

Category #2 for up to 15-years growth:

Upgrading of existing water main on Bayview Drive.
Greenwood Drive
Identifying and upgrading areas of low fire flow in the Downtown due to undersized and aging pipes.

Category #3 for beyond 15-years growth:

Phased replacement of aging cast iron water mains.

12.4 Sewage CollectionBack to Top

Similar to the water system, the City of Summerside’s sewage collection system services virtually all residences and businesses within City boundaries but, comparatively, it is more closely integrated. Most sewage flows are directed to the main sewage treatment plant (STP) on MacKenzie Drive constructed in the early 1970's, but the northern portion of the St. Eleanors area is serviced by a duplex lagoon system. Because the concept of a central collection system has been in place for some time, there are fewer deficiencies in sewer systems as compared with water.

A number of areas were identified across the City which cannot be serviced by gravity sewers and will require expensive pumping if they are to be developed. In some of these areas, the Official Plan allows higher residential densities to provide opportunities for developers to recover their increased costs. The option is also allowed for density transfer bonuses in costly-to-service areas, where the developer can turn over land for parks in return for building up higher densities in other parts of their sites (see Council Policy 6.4.9). Where pumping systems are installed, their capital costs would be borne by the developer and are not itemized here.

The list of sewer projects identified as necessary under preliminary engineering analysis are summarized below, included infilling of subdivisions where five or more lots are presently unserviced.

Category #1 for current needs and 5-years growth:

Installation of sewer main on Central Street from Pope Road to Highway No. 2, including Waverly Court.
Placement of gravity sewer main and sewer force main with lift station for the St. Eleanors industrial area to connect with the City’s sewer treatment plant. However, heavy sewage generators would have to provide their own additional treatment facilities on site.
McKenzie Drive lift station near sewage treatment plant.
Granville Street (north slope) lift station and trunk system
Phased replacement of miscellaneous sewer mains.

Category #2 for up to 15-years growth:

Miscellaneous sewer mains to isolated areas.
Phased replacement of miscellaneous sewer mains.

Category #3 for beyond 15-years growth:

Phased replacement of miscellaneous sewer mains.

12.5 Sewage TreatmentBack to Top

A detailed review of the sewage treatment plant (STP) was carried out to determine upgrading work required due to its age, as well as to investigate the possibility of upgrading the plant for secondary treatment.

Category #1 for current needs and 5-years growth:

Upgrading of the City’s sewage treatment plan to improved standards of treatment, at tertiary treatment level ($16.2 million).

Category #2 or #3 Projects:

None.

12.6 Storm DrainageBack to Top

A detailed analysis of the storm drainage system was not undertaken at this time due to its complexities and high costs. However, a master storm water plan must be completed in advance of the capital plan.

Category #1 for current needs and 5-years growth

Preparation of a Master Storm Water Plan for the City was completed by Delcom Engineering in November 1998. The City was divided into sixteen areas for evaluation and was mapped for flow direction.

Category #2 or #3 Projects:

To be determined.

Section 13. ONGOING PLANNINGBack to Top

13.1 Planning Work ProgramBack to Top

The following Table 13-1 summarizes a work program of planning projects required to implement and further elaborate the Official Plan. In many cases completion years are identified but in cases where the planning process is more open-ended or other agencies are involved, only start years are identified. Schedule deadlines are subject to the availability of resources and reviews of priorities by Council of the day. All of the projects are discussed in previous sections of the text, except for the boundary issues which are introduced below.

13.2 Application of Official Plan and Development Control BylawBack to Top

Section 15.(1) of the Provincial Planning Act requires that, “Following the adoption of the Official Plan by the Minister (a) the plan becomes the official plan for the area;.... and (d) the council shall, as soon as practicable, cause bylaws to implement the official plan.”

Priority in the work program is the modification of the Zoning and Development Control By-Laws to reflect this new Official plan.

In the short interim period until these modifications are put in place, the City’s Official Plan will have application in all situations except where there is direct conflict with the text in the present bylaws. For instance, the new Official Plan would be taken into consideration by Council for any rezonings during the interim period, but would not normally apply in cases of controlling discretionary uses that are presently dealt with differently under the present bylaws.

Table 13-1. Planning Work Program
Items	Schedule
CITY STRATEGIC PLAN	2006 ongoing
SPECIAL PLANS AND BYLAWS
— Strategic Parks and Greenways Plan	2006 completion
SECONDARY PLANS
— Secondary Planning Area SPA No. 1 (Downtown) — Secondary Planning Area SPA No. 2 (West End)	2006 completion 2007 completion
CONCEPT PLANS
— East- West Connector Study	2006 completion
— Active Transportation Study	2007 completion
CAPITAL PLAN	2006 ongoing

13.3 City Boundary IssuesBack to Top

This issue involves Slemon Park, of which part is within the City and another part is managed by the Slemon Park Development Corporation. There are numerous overlapping issues which need to be addressed between the City and the Corporation, including coordination of economic development strategies and land use planning, maintenance of services, coordinated capital infrastructure projects, and potential benefits of the City providing professional services to the Corporation for planning, development control, engineering and economic development. It is possible that some of these issues could be advanced through appropriate inter-local agreements, but the City also wishes to review its preferred strategy of amalgamation.

13.4 Plan ReviewBack to Top

Following section 15.1(1) of the Planning Act, the Council will review its Official Plan no later than five years from its date of approval (and earlier, if needed). The Official Plan may be amended as circumstances change or in response to requests from the public, as long as the procedures used are in accordance with the Planning Act. Also, changes may be made to the Plan to accommodate input from continuing planning projects listed above. Lastly, annual reports will be prepared for Council on the Plan’s continuing effectiveness and on the need for any adjustments.