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General Plan By-law No. 898
THE CORPORATION OF THE CITY OF IQALUIT
BY-LAW # 898
GENERAL PLAN BY-LAW (2020)
A By-law of the City of Iqaluit in Nunavut to adopt a General Plan, pursuant to the
provisions of the Planning Act, R.S.N.W.T. 1988, c. P-7 s.24
WHEREAS the Council of the City of Iqaluit has prepared a general plan, referred to as the
"City of Iqaluit General Plan" in accordance with the Planning Act.
NOW THEREFORE the Council of the City of Iqaluit, in a regular session duly assembled,
enacts as follows:
1.
The general plan of the City of Iqaluit, known as the "City of Iqaluit General Plan" and the
attached Figure A, Figure B, Figure C, Figure D, Figure E of this by-law, are hereby
adopted.
2.
Figure A, Figure B, Figure C, Figure D, Figure E, form part of this by-law.
3.
This By-law shall come into effect on the date of its third reading.
4.
By-law No. 703, as amended, is hereby repealed.
READ a first time this 25th day of August 2020.
Kenny Bell
Mayor
Amy Elgersma
Chief Administrative Officer
General Plan By-law No. 898
After due notice and a Public Hearing held on _________________.
READ a second time this ____ day of ___________ 202_.
Kenny Bell
Mayor
Amy Elgersma
Chief Administrative Officer
APPROVED by the Minister of Community and Government Services this _____ day of
_____________ 202__.
Minister, Community and Government Services
Honourable David Akeeagok
READ a Third and Final time this ______ day of __________________ 202_.
Kenny Bell
Mayor
Amy Elgersma
Chief Administrative Officer
General Plan By-law No. 898
Table of Contents
Iqaluit General Plan By-law No.898
i
Table of Contents
SECTION 1 INTRODUCTION ................................................................................ 1
1.1
PURPOSE OF THE GENERAL PLAN ................................................................. 1
1.2
THE PLANS FOR IQALUIT'S FUTURE ............................................................. 1
1.3
TIME FRAME OF THE GENERAL PLAN........................................................... 3
1.4
PLAN ADOPTION AND AMENDMENTS ........................................................... 3
1.5
METHOD OF PLAN PREPARATION ................................................................. 3
SECTION 2 VISION & ACTIONS ........................................................................... 5
2.1
A UNIQUE ARCTIC CAPITAL ........................................................................ 7
2.1.1
Creating a Distinctive Core Area & Capital District ............................. 7
2.1.2
Reflecting Inuit Cultural Heritage .......................................................... 8
2.2
A LIVEABLE CITY ........................................................................................ 8
2.2.1
Recognizing and Protecting the Arctic Way of Life ................................ 9
2.2.2
Providing a Clear Development Strategy for Housing Choice ............... 9
2.2.3
Promoting Attractive & Well-Designed Developments ........................ 10
2.2.4
Ensuring Economic Opportunities ........................................................ 10
2.2.5
Ensuring Security and Safety through Design ...................................... 10
2.2.6
Protecting Access to the Land & Sea .................................................... 11
2.3
AN ENVIRONMENTALLY RESPONSIBLE & SUSTAINABLE CITY .................. 11
2.3.1
Ensuring that Development Respects the Natural Environment ........... 12
2.3.2
Ensuring Clean Air, Water, & Land ..................................................... 12
2.4
EFFECTIVE COMMUNITY PLANNING........................................................... 12
2.4.1
Promoting Participation in Planning ................................................... 12
2.4.2
Ensuring Implementation of the Plan ................................................... 13
2.5
A COMMUNITY THAT ADAPTS TO THE IMPACTS OF CLIMATE CHANGE ..... 13
2.5.1
Study the Impacts of Climate Change in Iqaluit ................................... 14
2.5.2
Adapt to Climate Change ...................................................................... 14
SECTION 3 DEVELOPMENT STRATEGY ........................................................ 15
3.1
POPULATION GROWTH ............................................................................... 15
3.2
HOUSING UNITS ......................................................................................... 17
3.3
PHASING OF DEVELOPMENT ....................................................................... 19
SECTION 4 BEYOND THE POPULATED AREA .............................................. 22
4.1
NUNA ......................................................................................................... 22
4.2
WATERSHED PROTECTION AREA ............................................................... 24
4.3
SYLVIA GRINNELL TERRITORIAL PARK RESERVE ...................................... 25
4.4
AGGREGATE RESOURCES DESIGNATION .................................................... 25
SECTION 5 POPULATED AREA LAND USE POLICIES................................. 28
5.1
CORE AREA DESIGNATION ......................................................................... 28
5.1.1
Core Area Land Use & Housing Policies ............................................. 29
5.1.2
Core Area Pedestrian & Vehicle Circulation Policies ......................... 31
5.1.3
Beautify the Core Policies .................................................................... 33
5.1.4
Capital District Overlay ....................................................................... 35
5.1.5
Sijjanga District Overlay ...................................................................... 37
5.2
RESIDENTIAL ............................................................................................. 38
5.2.1
General Residential Policies................................................................. 39
5.2.2
Residential Community Designation ..................................................... 42
Table of Contents
Iqaluit General Plan By-law No.898
ii
5.3
COMMERCIAL ............................................................................................ 43
5.3.1
General Commercial Policies ............................................................... 43
5.3.2
Commercial Designation ...................................................................... 45
5.4
INSTITUTIONAL .......................................................................................... 45
5.4.1
General Institutional Policies ............................................................... 46
5.4.2
Institutional Designation ...................................................................... 47
5.4.3
Cemetery Symbol .................................................................................. 47
5.5
INDUSTRIAL ............................................................................................... 48
5.5.1
General Industrial Policies ................................................................... 49
5.5.2
Light Industrial Designation ................................................................. 49
5.5.3
Heavy Industrial Designation ............................................................... 50
5.6
OPEN SPACE DESIGNATION ........................................................................ 52
5.7
PARKS AND RECREATION ........................................................................... 55
5.8
HISTORICAL AND CULTURAL RESOURCES ................................................. 56
5.8.1
Cultural Heritage Symbol ..................................................................... 58
5.9
FUTURE DEVELOPMENT AREA DESIGNATION ............................................ 59
5.9.1
Development Scheme Overlay .............................................................. 60
5.10
FEDERAL ROAD SPECIAL POLICY OVERLAY .............................................. 61
5.11
TRANSPORTATION FACILITY DESIGNATION ............................................... 63
SECTION 6 MOBILITY ......................................................................................... 66
6.1
TRANSPORTATION MASTER PLAN .............................................................. 66
6.2
PEDESTRIAN WALKWAYS, WALKING TRAILS, & CYCLING ROUTES .......... 67
6.3
SNOWMOBILE TRAILS ................................................................................ 69
6.4
ROADS ....................................................................................................... 70
6.4.1 Arterial Roads ........................................................................................... 70
6.4.2
Collector Roads .................................................................................... 72
6.4.3
Local Roads .......................................................................................... 73
6.4.4
Bypass Road.......................................................................................... 74
6.4.5
Taxi and Transit Service ....................................................................... 75
SECTION 7 MUNICIPAL SERVICES & OTHER UTILITIES ......................... 77
7.1
INFRASTRUCTURE & CLIMATE CHANGE .................................................... 77
7.2
SOLID WASTE MANAGEMENT .................................................................... 79
7.2.1
Waste Disposal Sites ............................................................................. 79
7.2.2
Former Waste Disposal Sites & Contaminated Sites ............................ 80
7.3
WATER SUPPLY & WASTEWATER TREATMENT ......................................... 81
7.4
WATER & SEWER SERVICES: PIPED VS. TRUCKED WATER & WASTEWATER
SERVICES ................................................................................................................ 82
7.5
OTHER UTILITY INSTALLATIONS................................................................ 83
SECTION 8 IMPLEMENTATION ........................................................................ 85
8.1
ROLES & RESPONSIBILITIES ....................................................................... 85
8.1.1
The Applicant ........................................................................................ 85
8.1.2
Development Officer ............................................................................. 85
8.1.3
Council .................................................................................................. 86
8.1.4
Planning Committee ............................................................................. 87
8.1.5
Development Appeal Board .................................................................. 87
8.1.6
Government of Nunavut Building Official ............................................ 88
8.1.7
Procedures Manual............................................................................... 88
8.2
DEVELOPMENT PERMITS ............................................................................ 88
8.3
PUBLIC NOTIFICATION ............................................................................... 89
8.4
DEVELOPMENT SCHEMES ........................................................................... 90
Table of Contents
Iqaluit General Plan By-law No.898
iii
8.5
SUBDIVISION OF LAND ............................................................................... 91
8.6
LAND DEVELOPMENT GUIDELINES ............................................................ 91
8.7
LOT DEVELOPMENT STANDARDS ............................................................... 94
8.8
ZONING BY-LAW........................................................................................ 96
8.9
VARIANCES TO THE ZONING BY-LAW ........................................................ 97
8.10
OTHER BY-LAWS ....................................................................................... 97
8.10.1
Development Charges By-law .......................................................... 98
8.10.2
Property Maintenance By-law .......................................................... 98
8.10.3
Land Administration By-law ............................................................. 98
8.11
PUBLIC WORKS .......................................................................................... 99
8.12
PLAN MAINTENANCE ................................................................................. 99
8.12.1
Plan Amendments ............................................................................. 99
8.12.2
Plan Review Procedure .................................................................... 99
SECTION 9 INTERPRETATION ........................................................................ 101
APPENDIX A - DEVELOPMENT POTENTIAL .............................................. 103
List of Tables
Table 1 Population Projections to 2022 in 5-year increments ........................ 17
Table 2 Housing Projections ........................................................................... 18
Table 3 Phasing of Development ................................................................... 21
List of Illustrations
Illustration 1 Arterial Road - Typical Cross Section ........................................ 72
Illustration 2 Downtown Collector Road - Typical Cross Section ................... 73
Illustration 3 Local Road - Typical Cross Section ........................................... 74
List of Figures
Figure A - General Land Use
Figure B - Populated Area Land Use
Figure C - Walking and Snowmobile Trails
Figure D - Primary Road Network
Figure E - Piped Municipal Services
ANNEX A - PLATEAU DEVELOPMENT SCHEME
ANNEX B - INUIT OWNED PARCEL 'E' LAND DEVELOPMENT SCHEME
ANNEX C - FUTURE DEVELOPMENT AREA B DEVELOPMENT SCHEME
Section 1
Introduction
Iqaluit General Plan By-law No.898
1
SECTION 1
INTRODUCTION
1.1
Purpose of the General Plan
The City of Iqaluit General Plan contains Council's policies for
managing the physical development of Iqaluit. Recognizing the
dramatic changes and challenges facing the City since it became
Nunavut's capital in 2001, this Plan builds and expands upon
previous efforts; specifically, the General Plan will:
Translate the values and vision expressed in
the public consultation process into policy
actions;
Ensure that policy actions establish a clear
basis for decision making in the land use
planning process;
Focus on the provisions of the Planning Act
under which the General Plan is adopted;
Provide the basis for a more detailed City
zoning by-law to guide land uses in conformity
with this Plan;
Emphasize the Arctic's sensitive natural
environment by integrating community
sustainability and climate change adaptation
initiatives; and
Identify other City Plans and initiatives that will
complement and strengthen land use policies.
1.2
The Plans for Iqaluit's Future
The General Plan's policy actions' main intent is to observe
social, economic and environmental concerns in guiding the
physical development of the City. Along with other plans and
initiatives, it provides comprehensive long-term strategic
direction for Iqaluit, including programs and services, City
initiatives, and funding priorities for infrastructure development.
Section 1
Introduction
Iqaluit General Plan By-law No.898
2
Although the plans are inter-related, they have different
mandates. For example, the General Plan's policies preserve
certain lands, such as Sylvia Grinnell Territorial Park Reserve, as
park and open spaces; however, the Park is under the
jurisdiction of the Government of Nunavut (GN), whose Master
Plan and Management Plan include the vision and strategies for
use of the Park and its permitted facilities.
The following Plans provide strategic direction for growth of the
City:
The Recreation Master Plan outlines policy
actions to improve quality of life for Iqaluit
residents through park and recreation
services. It identifies needs, provides
direction, and establishes priorities for
recreation facilities and services with a ten-
year horizon tied into the Capital planning
process.
The Community Economic Development
Plan focuses on policy actions to improve
economic development and quality of life
within the community.
The Sylvia Grinnell Territorial Park Reserve
Master Plan contains specific policy actions
for promoting and protecting the recreational,
educational, scientific and natural heritage
functions of Sylvia Grinnell Territorial Park
Reserve.
The Core Area & Capital District
Redevelopment Plan details information on
design themes and strategies for
redevelopment of the City's central area.
The Integrated Community Sustainability
Plan (to be adopted) will describe long-range
goals, strategies and prioritized actions for
government and non-government
organizations, as well as the community at
large.
The Community Action Plan outlines
measures to reduce greenhouse gas
emissions from municipal operations.
Section 1
Introduction
Iqaluit General Plan By-law No.898
3
1.3
Time Frame of the General Plan
The City of Iqaluit General Plan contains Council's policies for
managing the physical development of Iqaluit to the year 2030,
by which time the projected population could reach over 13,000.
The General Plan was adopted by By-law No. 703 and received
third reading on October 26, 2010. As required by the Planning
Act, a General Plan should be reviewed at least every five years
to ensure that it reflects current needs. The previous General
Plan was adopted by By-law No. 571 on June 10th, 2003.
1.4
Plan Adoption and Amendments
The General Plan is adopted by By-law and approved by the
Minister of Community and Government Services. Changes can
be made by amending the By-law under the provisions of the
Planning Act.
1.5
Method of Plan Preparation
This Plan was prepared in consultation with the residents of
Iqaluit, City Council, the Government of Nunavut, the Land
Claims Organizations, and the Government of Canada. A series
of open houses, public meetings, and workshops with the public
and selected focus groups was held in April, June and October
of 2009.
The April meetings were intended to introduce the General Plan
review to Council and elicit early input for policy directions and
suggestions for consulting with Iqalungmiut.
In June, four neighbourhood workshops were held to gather the
views of residents from the Core Area, Apex, the Plateau
Subdivision and Tundra Valley/Road to Nowhere/Lake
Subdivision. An open invitation was extended to all Iqalungmiut
to participate in a "Community Café" where any and all ideas
could be shared. Focus group sessions were held with the
business community and local contractors and developers.
Much of the policy direction of this General Plan was confirmed
through these meetings.
Section 1
Introduction
Iqaluit General Plan By-law No.898
4
The October consultations provided an opportunity for Council,
residents and other stakeholders to review and discuss proposed
strategic policy changes and community growth options.
Additional community consultations were held in December 2009
to review the Draft General Plan and Zoning By-law.
Section 2
Vision & Actions
Iqaluit General Plan By-law No.898
5
SECTION 2
VISION & ACTIONS
The General Plan incorporates the community values and
visions expressed during the public consultation process,
summarized in the five statements of the Vision Framework. The
following pages describe how the Vision Framework will be
achieved and include a link to specific policy actions described in
the General Plan.
A Unique Arctic Capital
Iqaluit will be a distinctive and vibrant City that represents the
unique cultural heritage of Nunavummiut.
Objectives:
Creating a Distinctive Core Area and Capital District
Reflecting and celebrating Inuit Cultural Heritage
A Liveable City
Iqalungmiut will live in a safe, caring, prosperous and attractive
City that reflects an arctic lifestyle.
Objectives:
Recognizing and Protecting the Arctic Way of Life
Providing a Clear Development Strategy for Housing
Choice
Promoting Attractive & Well-designed Developments
Ensuring Economic Opportunities
Ensuring Security and Safety Through Design
Protecting Access to the Land & Sea
General Plan Vision Framework
General Plan Vision Framework
Section 2
Vision & Actions
Iqaluit General Plan By-law No.898
6
An Environmentally Responsible and Sustainable City
Iqalungmiut will live in a City that preserves, protects and
enhances a clean and healthy natural environment.
Objectives:
Ensuring that Development Respects the Natural
Environment
Ensuring Clean Air, Water, & Land
Effective Community Planning
Iqalungmiut will be active in the development of their City. They
will be consulted on and involved in government issues
important to them.
Objectives:
Promoting Participation in Planning
Ensuring Implementation of the Plan
A Community That Adapts to Climate Change
Iqalungmiut will partner with the City in studying and finding
ways to adapt to climate change.
Objectives:
Study the impact of climate change
Adopt policies that recognize and respond to the long-
term impacts of climate change
Section 2
Vision & Actions
Iqaluit General Plan By-law No.898
7
2.1
A Unique Arctic Capital
Since the creation of Nunavut in 1999, Iqaluit has been growing
into its new role as an arctic capital city representing an
expansive and largely Inuit territory. By far the largest
community in Nunavut, Iqaluit plays an important and unique role
as its major business, transportation, administrative, health and
educational centre. Iqaluit's non-Inuit population is much higher
than other Nunavut communities; it faces the dual challenge of
recognizing its multicultural status and ensuring that it is
representative of the Territory.
Developing a vibrant Core Area and emphasizing cultural
heritage are vital initiatives in achieving a unique arctic capital.
The Core Area requires a balance of new housing, office and
retail development, as well as public gathering spaces for
indoor/outdoor events and art displays. A stronger Core Area
identity and an improved pedestrian and open space network
can link the city to the land and sea in a way that reflects Inuit
heritage. Growing interest in the arctic gives residents'
opportunities to share their city and their culture with visitors.
Culturally significant local areas are experiencing pressure for
development; maintaining a clear distinction between areas for
potential development and those that support recreational and
traditional activities will be crucial. New buildings and
development must respect and protect the existing natural and
built heritage.
Objectives:
Creating a Distinctive Core Area and Capital District
Reflecting Inuit Cultural Heritage
2.1.1 Creating a Distinctive Core Area & Capital District
The Core Area will remain the business and employment centre
for the city and the gateway for visitors. The Capital District will
remain within the Core Area to accommodate office and
institutional uses that support Iqaluit's capital city functions. The
Core Area will continue to have its own unique identity,
characterized by high quality building design, consistent urban
form and a significantly enhanced pedestrian environment with
gathering spaces. Partial residential redevelopment of the Core
Area will be encouraged to promote wider participation in
Iqaluit will be a
distinctive and
vibrant City
representative
of the unique
cultural
heritage of
Nunavummiut
Section 2
Vision & Actions
Iqaluit General Plan By-law No.898
8
cultural and recreational activities, as well as employment
opportunities within walking distance.
2.1.2 Reflecting Inuit Cultural Heritage
The City will strive to emphasize and reflect Inuit cultural values
and knowledge in the land use planning process. Buildings and
locations of cultural significance, such as beach and camping
areas, archaeological and burial sites, will be given special
consideration in reviewing any development proposals.
2.2
A Liveable City
The City's projected 2030 population of 13,050 will necessitate
more land for homes, parks, shops, services, and jobs. Quality of
life in the City will decline if growth is unplanned and threatens
things that residents' value.
Growth in Iqaluit has meant more cars and snowmobiles crowding
walking space on the roads. Affordable housing is scarce, and
some areas have poor access to shops and services. The
placement and character of buildings does not always reflect the
realities of arctic living. These and other issues must be addressed
to ensure that Iqaluit is a safe and pleasant place to live and visit.
Balancing the desire for open spaces and parks with the need for
additional housing and services will be essential.
Environmental sustainability encourages practices that minimize
environmental damage and ensure long-term integrity of the
ecosystem. Compact development patterns that leave more land in
its natural state produce fewer emissions and substantially reduce
servicing costs. Although the land supply in the Arctic seems
limitless, a dispersed settlement pattern is more expensive to
service and has greater impact on the environment.
New development planning in Iqaluit will be strongly influenced by
the physical environment, a series of parallel rock ridges
interspersed with valleys of varying width. Most of the built-up area
of town, including the airport, is located on the largest area of level
land. With level land limited, Iqaluit has expanded over the last two
decades into sloping areas such as Tundra Valley and the Road To
Nowhere, and higher areas such as the Plateau Subdivision.
Servicing sloping areas with piped sewer and water is typically
more difficult and expensive; development decisions will involve
Sustainable
Development meets
the needs of the
present generation
without
h
Iqalungmiut
will live in a
safe, caring,
prosperous,
and attractive
City that
reflects an
arctic way of
life.
Section 2
Vision & Actions
Iqaluit General Plan By-law No.898
9
reducing the extension of costly service infrastructure and impacts
on the natural environment.
As new areas are developed and older areas undergo
redevelopment, the principles of Crime Prevention Through
Environmental Design (CPTED) will be important; incorporating its
guidelines for safety and security will help build community
cohesion and an improved quality of life.
Objectives:
Recognizing and Protecting the Arctic Way of Life
Providing a Clear Development Strategy for Housing
Choice
Promoting Attractive & Well-designed Developments
Ensuring Economic Opportunities
Ensuring Security through Safe Design
Protecting Access to the Land & Sea
2.2.1 Recognizing and Protecting the Arctic Way of Life
The City will protect the unique aspects of arctic living and foster
the resulting community spirit. It will recognize the land-based
economy, support the traditional way of life, protect views and
access to the beach, and ensure adequate open space between
and within built up areas.
2.2.2 Providing a Clear Development Strategy for Housing
Choice
The City's General Plan will adopt a Development Strategy to guide
urban growth. Iqaluit will be designed to offer a range of housing
types for residents of different ages and incomes. The City will
address the issue of overcrowding and work with the appropriate
authorities to provide land for more housing in convenient locations.
Given the high cost of developing basic infrastructure such as
roads, power, sewer and water services, maximum use will be
made of existing infrastructure. Mixed-use buildings with
commercial uses on the ground floor and residential above will be
encouraged in the Core Area, where access to services will be
available in an improved walking environment. New development
within existing service limits will be explored prior to expanding
them. The City will consider limited small-scale residential
development outside the service limits on trucked services;
however, the long-term intent of Council is that all new
development be connected to piped water and sewer services.
Section 2
Vision & Actions
Iqaluit General Plan By-law No.898
10
2.2.3 Promoting Attractive & Well-Designed Developments
The City will work to make Iqaluit attractive and well designed. A
carefully planned open space network with trails and parks will link
all developments. Guidelines for City staff will focus on creating a
functional and attractive environment. Guidelines for new
development will consider tundra preservation, pedestrian
connections, parks, building orientation for views and sunlight, and
the adverse effects of snow drifting. The General Plan will pursue
these goals through the following actions:
Establish Development Guidelines for layout of new
subdivisions.
Establish a Property Maintenance By-law.
Provide Urban Design Guidelines for the Core Area.
2.2.4 Ensuring Economic Opportunities
The City will pursue land use policies that increase economic
opportunities, including adequate land resources and well-designed
road systems, to link businesses and connect with the harbour and
airport. The importance of the marine harbour/sea-lift area and the
airport will be recognized and reinforced. Aggregate resource
areas will be protected from extraction so that Iqaluit can meet its
own needs in the future. The City will continue to enhance and
protect the overall quality of life to ensure that Iqaluit is an attractive
place to live, work and visit.
2.2.5 Ensuring Security and Safety through Design
Iqalungmiut should feel and be safe in Iqaluit's public spaces. The
City will apply the principles of Crime Prevention Through
Environmental Design (CPTED) in all phases of land development,
including the review of development applications. CPTED's guiding
principle is that the physical environment can be designed and
managed to reduce the incidence and fear of crime. The focus in
developing new neighbourhoods and public spaces will be
improved liveability and safety; for example, safe play areas for
children within easy walking distance of home, and playground
access for younger children without having to cross a busy road.
Designated pedestrian walkways along major roads will be
maintained and well-lit to improve safety. Off-road walking trails
will be improved. Existing conflicts between vehicular, snowmobile,
and pedestrian traffic will be reduced through good design and
phased improvements to trail networks.
Section 2
Vision & Actions
Iqaluit General Plan By-law No.898
11
2.2.6 Protecting Access to the Land & Sea
The City will identify and protect major access points to the land
and the sea. It will also capitalize on future opportunities to
improve access through the Development Permit process.
2.3
An Environmentally Responsible & Sustainable
City
Iqaluit is set in a unique but fragile tundra and sea environment.
Involvement with the natural environment was an essential part of
the lives of Inuit in the recent past and continues to play a very
important role for many. The City's municipal boundaries comprise
52.3 square kilometres of land. They were established to allow
Iqaluit to access clean water and granular resources, dispose of its
waste, expand developed areas as needed, prevent disorganized
development outside the developed area, and protect areas of
community importance.
There are many instances in recent history, however, where the
natural environment has been abused. Numerous dumps
throughout Iqaluit, at Apex, West 40, North 40 and the Upper Base,
as well other potentially contaminated sites, present public health
and safety risks, as well as being aesthetically unpleasant.
A city striving for environmental responsibility faces many
challenges, among them: preventing waterway pollution, preserving
shorelines of creeks and the sea, protecting a clean and abundant
water supply, reducing waste to landfills, and protecting the tundra
in populated areas from unnecessary damage during development.
It also entails avoiding urban sprawl and taking advantage of
redevelopment and infill opportunities before opening up new land
for development.
Objectives:
Ensuring that Development Respects the Natural
Environment
Ensuring Clean Air, Water, & Land
Iqalungmiut
will live in a
City that
preserves,
protects and
enhances a
clean and
healthy natural
environment
Section 2
Vision & Actions
Iqaluit General Plan By-law No.898
12
2.3.1 Ensuring that Development Respects the Natural
Environment
The City will ensure that development or redevelopment of sites
focuses on designing with, or around, natural features that should
be preserved. Designing with nature means preventing
development too close to rivers, creeks, and the sea, as well as
protecting portions of the tundra in populated areas.
2.3.2 Ensuring Clean Air, Water, & Land
The City will protect the air, water, and land in Iqaluit. A clean and
adequate water supply will remain a high priority. The City will
ensure protection of the Lake Geraldine and Niaqunguk River
watersheds for future water supply, and encourage design
technologies that reduce environmental impacts, such as
wastewater recycling and energy efficient building design. The City
will encourage the clean-up of dump sites where appropriate.
2.4
Effective Community Planning
Iqaluit's transformation into a capital has placed many pressures on
the City. Despite recent efforts, many people, particularly long-term
residents, feel left out of the planning decision-making process.
The City must encourage citizen participation in the planning
process and in initiatives that will shape the future of the City, as
well as ensure that planning decisions are based on the City's
approved plans and by-laws.
Objectives:
Promoting Participation in Planning
Ensuring Implementation of the Plan
2.4.1 Promoting Participation in Planning
The City will encourage community participation in the decision-
making process. Public consultation and notification will be
strengthened, with particular attention to Inuit input on major
developments and/or developments of particular significance for
cultural heritage.
Iqalungmiut
will be active in
the
development of
their City and
will be
consulted on
and involved in
government
issues that are
important to
them.
Section 2
Vision & Actions
Iqaluit General Plan By-law No.898
13
2.4.2 Ensuring Implementation of the Plan
Land use planning decisions will be based on the General Plan and
municipal by-laws. The City will ensure that staff, the development
community, and Iqaluit residents understand the meaning and
implications of the General Plan and municipal by-laws. The
General Plan will be reviewed periodically under an established
process.
2.5
A Community That Adapts to the Impacts of
Climate Change
As scientists continue to study anthropogenic climate change, it is
increasingly apparent that arctic regions are subject to some of the
greatest environmental changes on the planet. If climate model
forecasts are accurate, impacts to the fragile arctic environment will
intensify; these include increased temperature and precipitation,
permafrost warming and thaw, decrease in sea ice, coastal erosion,
substantial and unknown changes to sea levels, and increased
extreme weather events.
While technologies and practices that reduce greenhouse gas
emissions are important, there is ample evidence that, even if
global emissions were to cease immediately, climate change-
related impacts would be felt for decades to come. With that in
mind, the City must assess how it can adapt to climate change.
Adaptive capacity is a community's ability to cope with or adjust to
climate change impacts and risks. By building adaptive capacity,
communities develop practical means to cope with climatic
uncertainties and reduce their vulnerability.
In the coming years, it will be essential for the City to understand
potential changes and prepare to respond quickly and effectively.
Information on specific impacts to Iqaluit will be critical to informing
decisions and building adaptive capacity.
Objectives:
Study the impacts of climate change in Iqaluit.
Adopt policies that recognize the long-term impacts of
climate change.
Section 2
Vision & Actions
Iqaluit General Plan By-law No.898
14
2.5.1 Study the Impacts of Climate Change in Iqaluit
The City of Iqaluit will develop mechanisms to study and monitor
the impacts of climate change. It will work with the community to
obtain and share this information and build the knowledge base
and adaptive capacity of the community.
2.5.2 Adapt to Climate Change
The City of Iqaluit will take a precautionary approach to
development by incorporating the best current knowledge on
climate change impacts into its decision-making. By creating a
monitoring system, the City will increase its knowledge base and
develop policies that build the adaptive capacity of the
community.
Section 3
Development Strategy
Iqaluit General Plan By-law No.898
15
SECTION 3
DEVELOPMENT STRATEGY
3.1
Population Growth
Iqaluit has experienced rapid population growth; the 2006
Census recorded a population of 6,184, an 18.1% increase since
2001, making Iqaluit the fastest-growing community in Nunavut.
It was also among the 15 fastest-growing communities in
Canada between 2001 and 2006. However, the 2006 figure may
not reflect the transient population; the Nunavut Bureau of
Statistics, in association with Statistics Canada, put the post-
2006 census closer to 6,520 and gave a 2007 figure of 6,802.
Two indices are generally used in forecasting population growth:
the natural rate of increase (number of births minus deaths), and
net migration (number of people moving to Iqaluit minus those
leaving). Nunavut has the highest fertility rate and youngest
population in Canada, resulting in the highest rate of natural
increase in the country. This growth is mitigated somewhat by a
relatively low average life expectancy and, particular to Iqaluit,
an increasing percentage of non-Inuit (40%) (Source: 2006
Aboriginal Census Profile, 2006 Census, Statistics Canada). As
for net migration, the Conference Board of Canada concluded
that very few Inuit move south.
The City's role as the capital of Nunavut, combined with
economic and cultural opportunities, has attracted people from
other eastern Arctic communities, as well as significant numbers
from the south, resulting in positive net migration immediately
following the creation of the territory (2000 to 2002). The 2008
Nunavut Economic Outlook (published by the Nunavut Economic
Forum) notes that since 2002, Nunavut has not had significant
migration from other parts of the country, except in 2007, when it
recorded economic growth of 13%. Representative government
hiring of Inuit and preferential procurement policies by the federal
and territorial governments for Inuit firms, as provided for in the
Nunavut Land Claims Agreement, may reduce the number of
southerners coming to Iqaluit in the future.
Section 3
Development Strategy
Iqaluit General Plan By-law No.898
16
The 2003 Iqaluit General Plan projects population growth to the
year 2022. A medium growth forecast was used as the basis for
this Plan; it estimated that the population of Iqaluit would reach
10,169 in 2022, assuming an annual average growth rate of
2.97%.
In conducting regular General Plan reviews it is essential to
revisit population projections to ensure that new information and
circumstances are incorporated into forecasts. Three revised
population projection scenarios have been developed, using
community level population projections prepared by the
Government of Nunavut, an observation of recent trends, and
economic data produced by the Nunavut Economic Forum. The
base for these projections is the Nunavut Bureau of Statistics
Iqaluit population estimate on July 1, 2007: 6,802.
1. Population change between the 2001 and 2006 Censuses
revealed an average annual growth rate of 3.38%.
Extension of this trend would mean a projected population
of approximately 14,625 people by 2030. This is
considered a HIGH projection.
2. In 2000 the GN Bureau of Statistics produced community
level population projections at an average annual rate of
2.87%, a total of 8,391 by 2020. Applying this average
annual growth rate to the current base population results
in an estimate of approximately 13,050 people by 2030.
This is considered a MEDIUM population projection.
3. The 2008 Nunavut Economic Outlook included revised
population forecasts developed by Statistics Canada for
the entire territory to the year 2025. Average annual
growth rates range from 0.74% to 2.04%. While this
report adopts the medium population outlook for the
territory as a whole, the higher rate may be a better
benchmark for Iqaluit, with its strong attraction for
migrants from other parts of the territory and southern
Canada. Applying an annual average growth rate of
2.04% to the current base population results in an
estimate of approximately 10,820 by 2030. This is
considered a LOW population projection.
A range of projected population growth is summarized in Table
1. Observed population growth between 1986 and 2006 and
projected growth scenarios are shown in Illustration 1. It is
recommended that a medium projection of 13,050 be used for
Section 3
Development Strategy
Iqaluit General Plan By-law No.898
17
the purposes of this Plan. Monitoring of actual growth rates is
needed to review the timing of development phasing and
estimating the need for infrastructure expansion.
Table 1
Population Projections to 2022 in 5-year increments
Year
Low
Projection1
Medium
Projection2
High
Projection3
2006
6,520
6,520
6,520
2007
6,802
6,802
6,802
2009
7,082
7,198
7,270
2010
7,226
7,405
7,516
2015
7,993
8,532
8,877
2020
8,842
9,830
10,484
2025
9,780
11,326
12,382
2030
10,820
13,050
14,625
1 Application of annual growth rates for Nunavut from Nunavut Economic Outlook (Nunavut Economic
Forum, 2008)
2 Application of average annual growth rates from Nunavut: Community Population Projections, March
2000 (Nunavut Bureau of Statistics)
3 Application of 5-year average annual growth between the 2001 and 2006 Census. (Statistics Canada).
Illustration 1
Observed and Projected Population Counts
3.2
Housing Units
Despite concerted efforts in recent years, there is a housing
shortage in Iqaluit. More is needed for the growing population, to
0
2,000
4,000
6,000
8,000
10,000
12,000
14,000
16,000
1986 1991 1996 2001 2006 2011 2016 2021 2026 2031
POPULATION
YEAR
Actual
Low
Medium
High
Section 3
Development Strategy
Iqaluit General Plan By-law No.898
18
relieve crowded housing conditions, for special needs residents,
and to promote the recruiting of employees. Housing supply
problems are linked to the high cost of serviced land and of
building, maintaining and operating homes. As a result, public
and government housing play an important role in Iqaluit.
According to the 2006 Census, there were 2,460 housing units in
Iqaluit and the average household size was 2.9 people.
Between the Census and the beginning of 2009, development
permit records show that an additional 369 housing units were
built; the base number of housing units in Iqaluit is therefore
estimated at 2,829 as of January 1, 2009.
Housing needs are determined by applying an average
household size to the future population forecasts. At 2.9 people
per household, average household size in Iqaluit is smaller than
in Nunavut as a whole (3.7), but larger than the national average
of 2.5.
The City will continue to use the Census average household size
figure 2.9 to estimate housing needs for anticipated population
growth to 2030; however, if household size decreases, housing
demand will be higher. Housing needs projections in Table 2 are
based on the population projections in Section 3.1.
Table 2
Housing Projections
Projection
Total units
needed by
2030
Current
supply
of
units*
Additional
units needed
by 2030
(Total -
Current)
Average
Units /
year
Low
3,730
2,829
901
43
Medium
4,500
2,829
1,671
80
High
5,043
2,829
2,214
105
* based on 2006 Census + units built or approved as of January 1, 2009 provided by the City of
Iqaluit Planning & Lands Department
Sufficient land should be set aside and available to meet housing
needs for the 20-year planning horizon. For the purposes of this
Plan, the target number of housing units will be 4,500 by 2030.
Section 3
Development Strategy
Iqaluit General Plan By-law No.898
19
Servicing constraints will limit new residential development until
capacity can be expanded. The General Plan aims to meet the
target, but geographic and topographic constraints, servicing
costs, and existing development patterns pose challenges within
the Populated Area. It will be necessary to consider infill, re-
development and increased density to achieve the 4,500 unit
target.
Policies:
1. Council will plan for a population of approximately 13,050 and
4,500 dwelling units by the year 2030.
2. In all land use designations permitting housing, in accordance
with specific zones in the Zoning By-law, Council will
encourage a range of housing types to increase choice and
affordability. Concentration of a single housing type in one
area will be avoided.
3. Council will establish a target for net residential density in
Section 8.6 - Land Development Guidelines, such that the
projected number of housing units can be accommodated
within the serviceable land supply.
4. Council will target a percentage of affordable housing units
for ownership in Section 8.6 - Land Development Guidelines.
5. Council will monitor the housing supply on a regular basis
and collaborate with agencies to assess housing needs.
3.3
Phasing of Development
Phasing of development is intended to provide adequate
serviced land for housing and economic development in a timely
manner and avoid premature infrastructure investment.
Table 3 outlines the phasing of development. Generally, new
development is favoured in areas already serviced by utilidor or
housing for
13,050
mix of
housing types
affordable
housing
Section 3
Development Strategy
Iqaluit General Plan By-law No.898
20
where cost-effective services can be extended. Targeted re-
development in existing built-up areas is expected to occur over
a longer period and is therefore indicated in Phases 1, 2, & 3. A
few remaining lots in the Lake and Road to Nowhere
Subdivisions have development constraints that could be
overcome. A number of lots in Phase 2 of the Plateau
Subdivision remain to be developed. It is anticipated that
subdivision Phases 3 and 4 will be developed over the next
couple of years. Together, these areas are categorized as
Phase 1 development and are likely to be fully developed by the
end of 2013.
By 2014, it is anticipated that new areas will be needed to
accommodate expansion. Two Future Development Areas, A
and B, are identified in Table 3 and intended for a mix of land
uses, as specified in the policies in Section 5.9. The phasing in
Table 3 does not give priority to Area A or B, but will be subject
to community consultation, assessment of need, and feasibility
and cost-effectiveness of extending services. Although Area B
could provide more developable land than Area A, this is subject
to further study and may affect estimated timelines for each
phase of development, as outlined in Table 3.
The Federal Road Special Policy Area, located west of the Core
Area in the North 40, consists of a large vacant parcel of Inuit-
owned lands and light industrial uses. Policies in Section 5.10
encourage the extension of sewer services along Federal Road
to permit high intensity uses such as residential and commercial
development. Development of this area is anticipated in Phase 2
or 3.
Prior to development, Future Development Areas require
approval of a Development Scheme and an amendment to this
Plan reflecting appropriate land use designations for the
intended uses (Section 5.9). An estimate of the development
potential for each area is in Appendix A of this Plan. Industrial
lands will be developed independent of the serviced lands. They
will be serviced by truck and phased according to need.
Policies:
1. Council will phase development according to the table below.
A more detailed analysis of development potential is located
in Appendix A.
Section 3
Development Strategy
Iqaluit General Plan By-law No.898
21
Table 3
Phasing of Development
Phase 1 (2010 to 2013)
Infill & redevelopment in Core Area
Road-To-Nowhere - remaining lots
Lake Subdivision - remaining lots
Plateau Subdivision - remaining lots in Phase 2
Plateau Subdivision - Phase 3 & 4
Phase 2 (2014 to 2020)
Future Development Area A or B
Federal Road Special Policy Area
Infill & redevelopment in Core Area
Phase 3 (beyond 2020)
Future Development Area A or B
Federal Road Special Policy Area
Infill & redevelopment in Core Area
2. Council will periodically review development phasing and, if
necessary, adjust it in response to current conditions. The
designation of Future Development Areas in Figure B and the
phasing timelines outlined in Table 3 do not oblige Council to
install infrastructure within this timeframe.
Section 4
Beyond the Populated Area
Iqaluit General Plan By-law No.898
22
SECTION 4
BEYOND THE POPULATED
AREA
Figure A of this Plan shows the boundaries of the City of Iqaluit
encompassing 52.34 square kilometres. Municipal boundaries
are specified in the Nunavut Land Claims Agreement (1993) and
designed to accommodate expansion of the built-up area and
location of future municipal services.
The boundary indicating the Populated Area of Iqaluit is shown in
Figure A. Beyond it are four land use designations: the Sylvia
Grinnell Territorial Park Reserve (including existing and
proposed boundaries of the park), the Watershed Protection
Area around the current (Lake Geraldine) and future (Niaqunguk
River) water supplies, Aggregate Resources, and Nuna, which
represents the land. More detailed land use designations for the
Populated Area are shown in Figure B.
4.1
Nuna
"Nuna" is an Inuktitut word referring to the land. It is used by
Iqalungmiut to describe undeveloped hinterland where a variety
of traditional and recreational activities occur. Access to Nuna
for fishing, hunting, snowmobiling, berry picking, and camping is
very important to both residents and visitors. There are also
cultural heritage resources in Nuna that need to be protected.
Section 4
Beyond the Populated Area
Iqaluit General Plan By-law No.898
23
Policies:
1. Permitted uses in Nuna will be limited to cultural and natural
uses, which include the following:
a) Temporary camping structures;
b) Small-scale public buildings or structures for community
use to support camping, hunting, fishing, and emergency
shelter;
c) Interpretation facilities associated with archaeological
sites;
d) Dog teams.
2. Council proposes to establish a Municipal Reserve (MR)
Zone in the Zoning By-law.
3. The following uses are permitted in Nuna subject to a Zoning
By-law amendment:
a) A Waste Disposal Site in accordance with the policies in
Section 7.2.1;
b) Communications facilities in accordance with the policies
in Section 7.3.4;
c) Facilities for power generation, including conventional
combustion and renewable energy sources such as
hydro-electric, solar and wind power;
d) Other public utilities, such as a water filtration plant;
e) Commercial facilities to support camping, hunting and
fishing.
4. Council will use the following criteria in evaluating proposed
development for the uses listed in Policy 3, in addition to
policies for specific uses elsewhere in this Plan:
a) Impact on the environment;
b) Road access;
c) Consideration of long-term expansion to the Populated
Area boundary;
d) Known cultural heritage resources;
e) Power availability;
f) Completion of an environmental assessment, if
applicable.
5. The long-term need to expand the Populated Area boundary
into Nuna will only be considered by amendment to this Plan
and only after completion of an analysis indicating the need,
servicing requirements, and potential impacts on the
environment.
Permitted
uses in Nuna
zone category
criteria for
evaluating
proposals
Uses in Nuna
subject to
Zoning
Amendment
expansion of
Populated
Area
boundary
aggregate
resources
Section 4
Beyond the Populated Area
Iqaluit General Plan By-law No.898
24
6. New roads will be constructed only after a review of
environmental impacts, cost and benefits to the City, and
justification of need.
7. Any proposed development close to the municipal boundary
or with potential impacts outside the municipal boundary shall
be submitted to the Nunavut Planning Commission.
8. For any development in Nuna, the proponent is encouraged
to consult with the Hunters and Trappers Organization.
4.2
Watershed Protection Area
There are two watershed protection areas shown in Figure A.
The Lake Geraldine Watershed provides the City's current water
supply. When the Lake Geraldine Watershed can no longer
supply enough water to meet the City's demand, the Niaqunguk
River and Sylvia Grinnell River will be considered as possible
supplemental sources. The Niaqunguk River's watershed has
been protected to ensure that development does not
compromise this potential future water supply for the City.
Additional policies regarding water supply and treatment are
found in Section 7 of this Plan.
Policies:
1. No development, including roads or trails, is permitted within
the Watershed Protection Area.
2. Council proposes to establish a Municipal Reserve (MR)
Exception Zone in the Zoning By-law.
3. The Watershed Protection Area extends beyond the
municipal boundary. To ensure protection of the City's future
water supply, Council shall:
a) Communicate with the Nunavut Planning Commission to
ensure that the watershed is identified and protected in
the South Baffin Regional Land Use Plan;
b) Explore the feasibility of extending the municipal boundary
to encompass the watershed of the City's future water
supply, pursuant to Article 14.6.2 (Municipal Boundaries)
of the Nunavut Land Claims Agreement.
4. When detailed watershed mapping is available, the
boundaries of the Watershed Protection Area in this Plan and
the Municipal Reserve (MR) Exception Zone in the Zoning
By-law shall be amended to reflect the detailed mapping.
zone category
municipal
boundary
road access
Development
near the
municipal
boundary
consultation
watershed
mapping
Section 4
Beyond the Populated Area
Iqaluit General Plan By-law No.898
25
4.3
Sylvia Grinnell Territorial Park Reserve
Sylvia Grinnell Territorial Park Reserve currently extends from
the West 40 to the eastern edge of the Sylvia Grinnell River.
The existing Park boundary and proposed boundary expansion,
as indicated in the Sylvia Grinnell Master Plan, are combined
and shown as Park Reserve in Figure A. The Park is an
important natural resource area and special attraction for the
region; it contains significant archaeological sites and is
identified as having great potential for further archaeological
research.
Policies:
1. Only development consistent with the policies of the Sylvia
Grinnell Master Plan will be permitted in the Park Reserve
designation indicated in Figure A.
2. Council proposes to establish the Park Reserve as an Open
Space (OR) Zone in the Zoning By-law.
3. Council will work with the GN Department of Environment to
ensure that Sylvia Grinnell Territorial Park Reserve is
managed for the benefit of visitors and residents.
4. Council will ensure orderly development along the main
access to the Park by:
a) Passing and implementing a Property Maintenance By-
law;
b) Restricting the location of outdoor storage and introducing
visual screening requirements in the Zoning By-law for
developments along the access road to the Park (sewage
lagoon to Park entrance);
c) Encouraging the growth and regeneration of a natural
tundra buffer on lands designated Open Space around the
entrance to the Park.
4.4
Aggregate Resources Designation
The Aggregate Resources designation recognizes and protects
the potential for extraction of aggregate resources. Protection of
local resources is essential, given the prohibitive cost of
importing them from other communities. The major aggregate
resources in Iqaluit are sand and gravel, used in a relatively
permitted
uses in the
Park Reserve
zone category
access ways
to the Park
Section 4
Beyond the Populated Area
Iqaluit General Plan By-law No.898
26
natural state for fill or a road base, or further refined for the
construction industry.
The environmental and social impact of mineral resource
extraction must be minimized. Extractive operations must
maintain high operating standards and have a rehabilitation plan
for the land once resources have been exhausted or the
operation is no longer viable. In return, the continued operation
of these sites will be protected by prohibiting incompatible new
development in their vicinity.
The following policies describe how these resources will be
managed and protected from incompatible development.
Policies:
1. Permitted uses in the Aggregate Resources designation shall
be primarily pit and quarry activity, which may include
portable asphalt plants and other uses associated with
resource extraction. New or existing recreational uses or
other temporary uses compatible with future resource
extraction shall also be permitted.
2. Council proposes to establish an Industrial Extraction (ME)
Zone in the Zoning By-law for active pits and quarries.
3. When the aggregate resources of a site have been fully
extracted, or it can be demonstrated that extraction of the
resources is not economically viable, the City may consider
alternate land uses.
4. Extraction of aggregate resources should not be
compromised by approval of incompatible development on
adjacent lands. Council will not approve planning
applications for incompatible land uses within 200 metres of
an Aggregate Resource designation.
5. Restoration and rehabilitation of the site shall begin
immediately upon abandonment or termination of resource
extraction and be carried out in cooperation with the
appropriate authorities.
6. Council may consider development of new pits and quarries
within the Aggregate Resources designation only by
amendment to the Zoning By-law. In considering such
amendments, Council shall regard:
permitted
uses
zone category
exhaustion of
resources
incompatible
development
site
rehabilitation
criteria for
new pits and
quarries
Section 4
Beyond the Populated Area
Iqaluit General Plan By-law No.898
27
a) Proposed haul routes and the road's capacity to
accommodate proposed truck traffic safely and
efficiently;
b) Impact on any nearby residences from noise, dust,
vibration, truck traffic, etc.;
c) Protection of nearby watercourses from excessive
runoff;
d) Impact on and compatibility with adjacent and nearby
land uses;
e) Proposed after-use and rehabilitation of the site;
f) Financial viability or cost.
Section 5
Populated Area Land Use Policies
Iqaluit General Plan By-law No.898
28
SECTION 5
POPULATED AREA LAND USE
POLICIES
Land uses within the Populated Area are defined by policies for
specific uses, such as commercial and industrial, and for specific
land use designations. Land use designations are shown in
Figure B. Policies for land uses beyond the Populated Area are
described in Section 4 of this Plan.
5.1
Core Area Designation
The Core Area is the symbolic heart of Iqaluit as a community
and as a capital. It has a diverse combination of employment,
government, retail, tourism, housing, entertainment, recreation
and cultural activities. Given its important role in the City,
specific policies have been adopted for the Core Area land use
designation, as shown in Figure B of this Plan.
Policies for the Core Area are aimed at maintaining the
employment focus, continuing a mix of land uses, encouraging
residential development in targeted areas, improving on and off-
street circulation to increase pedestrian safety and comfort, and
promoting a unified urban form and character through Urban
Design Guidelines. Section 5.1.1 discusses the land use and
housing policies to be adopted for the Core Area. Section 5.1.2
discusses pedestrian and vehicular circulation policies. Section
5.1.3 outlines policies for beautifying the Core Area.
In two Core Area 'Districts', uses and the scale and form of
development are further restricted - the Capital District and the
Sijjanga District. The boundaries of these Districts are shown in
Figure B of this Plan. They are considered overlays to the Core
Area land use designation, which means that the policies for the
Core Area apply, unless otherwise noted in the District policies.
Where there is a conflict between Core Area and District policies,
those of the District prevail. The Zoning By-law will establish
separate zones for the Capital and Sijjanga Districts.
Section 5
Populated Area Land Use Policies
Iqaluit General Plan By-law No.898
29
The intent of the Capital District overlay is to encourage
government and similar high-employment activities to locate in a
central and easily accessible location. Residential and retail
uses will be restricted, and larger scale development will be
permitted if its form and character are consistent with Urban
Design Guidelines. Policies for the Capital District overlay are
described in Section 5.1.4.
The intent of the Sijjanga (the Inuktitut word for beach area or
waterfront) District overlay is to protect views to the sea, access
to the beach area, traditional uses, and the low profile of existing
residential communities. Institutional and retail uses will be
restricted, and only smaller scale development will be permitted.
Policies for the Sijjanga District overlay are described in Section
5.1.5.
5.1.1 Core Area Land Use & Housing Policies
There is significant re-development potential in the Core Area;
under-utilized land could be used to create employment
opportunities and build housing to meet the needs of our growing
population. There are good examples of developments that
combine ground floor commercial use and residential space on
upper floors; this mixed use is encouraged along the main
commercial streets. Areas behind main commercial streets
should provide a transition to more residential uses and from
larger to smaller-scale buildings in established neighbourhoods
such as Lower Base. Multiple family and apartment housing will
be encouraged in these transition areas.
There are many advantages to promoting housing in the Core
Area. Residents can access services and employment without a
vehicle, resulting in less traffic. There is strong demand for
smaller dwellings, especially among young Iqalungmiut and
others who come to Iqaluit to work, go to school, or access
services unavailable in other Nunavut communities. Policies for
the Core Area therefore generally support residential
intensification.
Policies:
1. Council will support the Core Area shown in Figure B as the
focal point of government, tourism, business, retail, housing,
entertainment and cultural activities.
Section 5
Populated Area Land Use Policies
Iqaluit General Plan By-law No.898
30
2. Permitted uses in the Core Area shall include residential,
office, retail commercial uses, institutional uses, and open
spaces.
3. All development in the Core Area, except residential
developments up to six (6) dwelling units and commercial or
mixed-use developments up to 300 m2, shall follow the Core
Area Urban Design Guidelines, as described in the Core Area
and Capital District Redevelopment Plan, and as periodically
amended by Council resolution. For redevelopments
involving mostly interior renovations and minor site changes,
only Design Guidelines related to the proposed changes will
apply.
4. To encourage residential and mixed-use intensification in the
Core Area, Council proposes to allow a mix of uses in the B1,
B2, CD, and S zones in the Zoning By-law.
5. Building heights in the Core Area will generally be a
maximum of 4 storeys, with the exception of Astro Hill, where
the maximum will be 8 storeys. Council may approve a
height increase of up to 2 storeys through a Variance or up to
4 storeys (to a maximum of 8 storeys) through a Zoning By-
law Amendment, by applying the following criteria:
a) The visual impact of parking areas should be minimized,
which could include the use of parking structures;
b) Prominent views to the Legislative Assembly should not
be obstructed;
c) Prominent views to the beach area should be not be
obstructed;
d) The design of the building should be sensitive to the
height and mass of adjacent buildings, by proposing a
setback in height at and above the fourth storey (minimum
2m from the façade of the building) along public streets
and other transitions in height where appropriate;
e) The development should minimize shadowing on
residential uses, through siting and massing of buildings.
f) The development should minimize adverse effects of wind
and drifting snow on adjacent developments;
g) Road capacity should be adequate to serve the
development.
6. Council will recognize Mainstreets as significant commercial
streets that can support mixed-use and higher density
developments. High quality landscaping will emphasize the
Core Area uses
mixed-use
redevelopment
Mainstreets: Queen
Elizabeth, Mivviq,
Federal,
Niaqunngusiaq &
Sinaa
Core Area uses
building heights -
criteria for
increased height
Core Area Urban
Design
Guidelines
Section 5
Populated Area Land Use Policies
Iqaluit General Plan By-law No.898
31
importance of Mainstreets. The Mainstreets in the Core Area
are:
a) Queen Elizabeth Way, from Four Corners to the Core
Area boundary;
b) Federal Road, from Four Corners to the Core Area
boundary;
c) Mivviq Street, between Four Corners and the Airport
boundary.
d) Niaqunngusiaq Road, between Four Corners and the
Hospital; and
e) Sinaa Street, between Queen Elizabeth Way and the
Core Area boundary.
7. A Core Area and Capital District Redevelopment Plan was
adopted by resolution of Council in 2005. The Plan presents
a design concept, design guidelines, and a redevelopment
strategy for the Core Area and Capital District. An update to
this Plan should be undertaken if one of the following criteria
prevails:
a) The Government of Nunavut undertakes relocation of the
Legislative Assembly and associated activities outside the
Core Area and/or requests the establishment of a new
Capital District on lands located outside the Core Area;
b) Significant changes to the design concept and/or design
guidelines embodied in the Plan are being considered.
5.1.2 Core Area Pedestrian & Vehicle Circulation Policies
With increasing population and vehicle use in Iqaluit, pedestrian
and vehicle circulation issues in the Core Area must be
addressed, including parking, pedestrian walkways, walking and
snowmobile trails, a future by-pass road, potential road closings,
and infrastructure to support a future transit system.
Core Area &
Capital District
Redevelopment
Plan
Section 5
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Iqaluit General Plan By-law No.898
32
Policies:
1. Front yard parking will not be permitted for commercial or
mixed-use developments in the Core Area with frontage on a
Collector Road. Parking will be provided at the side or rear of
the building, or in a municipal parking facility. Exceptions to
this Policy may be considered for accessible parking spaces.
2. Back-out parking will not be permitted for any development
that requires more than three (3) spaces; parking must be
provided in a parking pod with an access driveway to the
road.
3. To facilitate redevelopment of smaller lots, Council will try to
use existing municipal lots or acquire new lots in the Core
Area for more municipal parking. These facilities may provide
dedicated off-site parking for new developments through a
cash-per-space contribution from proponents of eligible
developments, pursuant to the City's Cash-in-Lieu of Parking
Policy, as updated.
4. Municipal parking facilities will be located to provide safe
access to public roads and sidewalks or pedestrian corridors.
They will not be located in a yard facing a Collector Road or
Mainstreet. The City must have a designated site and fee
structure prior to Council approving off-site parking.
5. Adequate off-street loading facilities and services will be
provided.
6. To support a safe pedestrian environment, Council will:
a) Implement road cross sections for Arterial, Collector and
Local Roads, as described in Section 6.3, and increase
road width to accommodate future pedestrian walkways
where necessary as a condition of development approval.
b) Give priority for the development of pedestrian walkways
on Mainstreets as defined in Section 5.1.1.
c) Where necessary, secure pedestrian access across
properties to formalize existing walking routes as a
condition of development approval;
d) As much as possible, reduce snowmobile traffic through
the Core Area by providing alternate routes on the
periphery and increasing the number of access points to
the sea ice outside the Core Area;
e) Mark key snowmobile trails and crossings within the Core
Area with prominent signage; and,
parking location
sidewalks
parking location
pedestrian
walkways
municipal
parking facilities
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f) Clearly identify pedestrian crossings with pavement
marking or signs.
7. To reduce truck traffic (exclusive of local goods and services)
in the Core Area, Council will protect the corridor and
consider building a by-pass road, as indicated in Figure D,
and in accordance with the policies in Section 6.4.4.
8. Council will consider closing Al Woodhouse Road between
Iglulik Drive and Mivviq Street to facilitate redevelopment of
the surrounding lots and improve safety at the intersection
with Mivviq Street.
9. Council will consider closing Nunavut Drive between Federal
Road and Iglulik Drive to facilitate redevelopment of the
surrounding lots.
10. Council will consider a transit service and transit-friendly site
design to improve accessibility to the Core Area from outlying
areas, pursuant to policies in Section 6.
11. Council shall encourage use of Inuktitut in all signage.
5.1.3 Beautify the Core Policies
Policies to beautify the Core Area and instill community pride in
the symbolic heart of Iqaluit are a priority. Application of urban
design guidelines to all significant new developments,
particularly those in the Capital District and along the route from
the Airport (Federal Road), will greatly improve the City's image.
Street improvements, including landscaping works, paving, and
controlled parking will contribute to a more defined and
distinguished urban form. Maintaining and upgrading these
improvements will be as important as their initial installation.
Urban design guidelines are a tool for the City to manage new
development in the Core Area and move toward a more
integrated, functional and visually attractive urban form. They
are not intended to be prescriptive; alternative solutions may
satisfy the design objectives. Changing circumstances, such as
property consolidation and new building technologies and
materials are inevitable. The guidelines respect the overall
design concept for the Core Area, but are flexible to allow design
innovation.
Policies:
1. Developments in the Core Area, except residential
developments up to six (6) dwelling units and commercial or
by-pass road
by-pass road
transit service
Inuktitut signs
Core Area Urban
Design Guidelines
road closings
Section 5
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Iqaluit General Plan By-law No.898
34
mixed-use developments up to 300 m2, shall follow Core
Area Urban Design Guidelines as described in the Core Area
and Capital District Redevelopment Plan, and periodically
amended by Council resolution.
2. Developments in the Core Area will be finished with high-
quality, durable materials. This provision does not apply to
lands subject to the IOL Parcel 'E' Development Scheme.
This provision shall not apply to subject lands on Plan 4189,
Lots 214 & 215 and Plan 4150, Block 70, Lot 2.
3. Shipping containers ("sea cans") will not be permitted in the
Core Area. This policy will not preclude the use of shipping
containers as the frame of a building (or part of a building) if
the container is re-sided or otherwise used to create an
innovative and appropriate building design.
4. Council will enhance visitors' impression of the City by
defining Federal Road between the intersection of Qaqqamiut
Road and Federal Road and Four Corners as the gateway
and primary access to the City. In addition, Council shall:
a) Ensure a high standard of urban design for all new
developments located along the gateway;
b) Facilitate the consolidation of lots to permit redevelopment
of land to a higher urban design standard.
5. Council shall maintain Nunavut Square and Iqaluit Square
and promote their use for ceremonial and civic events.
6. Council shall maintain and enhance installed landscaping
works on Mainstreets, such as public art, signage, walkway
posts, garbage enclosures, or other works, as required. New
landscaping works shall be prioritized as follows:
a) Installation of a pedestrian walkway on at least one side of
Mivviq Street, from Four Corners to the Core Area
boundary;
b) Installation of a pedestrian walkway on at least one side of
Federal Road, from Four Corners to the Core Area
boundary;
c) Naturalized pockets will be incorporated into landscaping
works, where possible.
design & finish
sea-cans
gateway to the
Core Area
sea-cans
Federal Road:
gateway to the
Core Area
Maintaining /
enhancing
squares &
landscaping
works
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35
5.1.4 Capital District Overlay
Iqaluit's role as the capital of Nunavut carries functional and
symbolic responsibilities. A Capital District centralizes
government services, encourages citizen access, and facilitates
communication among levels and departments. It requires a
distinctive area with a consistent urban form. Identifying and
protecting adequate land resources for a Capital District will
promote the long-term vitality of Nunavut's capital.
Locating the Capital District inside the Core Area has many
advantages. Government accounts for a significant percentage
of the workforce in Iqaluit and will ensure that the Core Area
remains the employment hub of the City. The Core Area is the
gateway from the airport; its commercial mainstreets provide
meeting rooms, recreational and cultural venues, hotels,
business and personal services, and a selection of restaurants,
all easily accessible on foot. The Core Area has piped water and
sewer services and many under-utilized properties. Coherent
and consistently applied Urban Design Guidelines will create a
distinctive urban form for the Capital District.
These observations notwithstanding, this Plan recognizes the
considerable support for rebuilding the Legislative Assembly in a
distinctive natural setting with views to Koojesse Inlet and
Frobisher Bay. Two possible locations have been identified:
Future Development Area A, located along Niaqunngusiaq Road
east of the AWG Arena, and Future Development Area C, east of
Tundra Valley. These two locations are identified as GN
Reserves in Figure B. Lands on both sides of Niaqunngusiaq
Section 5
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Iqaluit General Plan By-law No.898
36
Road in the vicinity of the GN Reserve have also been identified
as a Possible Future Capital District Overlay in Figure B. This
overlay identifies these lands as significant; any Development
Scheme will need to consider the formal establishment of a
Capital District.
Policies:
1. To encourage redevelopment of under-utilized sites in the
Capital District for a cluster of office uses around key
government buildings, Council will establish an overlay policy
called Capital District, as shown in Figure B of this Plan.
Primary uses are government offices, and may include, but
are not limited to, courthouse, city hall, recreational facilities,
institutional and community spaces.
2. Commercial retail and services such as restaurants and
business support services shall be permitted as conditional
uses in the Capital District.
3. Council proposes to establish a Capital District (CD) Zone in
the Zoning By-law consistent with the boundaries of the
Capital District overlay in this Plan.
4. Residential uses will be permitted in the Capital District only
in buildings where 100% of the main floor is non-residential,
and no more than 50% of the gross floor area of the building
is dedicated to residential uses.
5. Building heights in the Capital District will generally be limited
to a maximum of 4 storeys in the Zoning By-law; however,
variances and zoning by-law amendments to allow building
heights of up to 8 storeys will be considered using criteria
established in Section 5.1.1, Policy 5 (a)-(g).
6. Council will work with federal and territorial departments and
agencies to encourage concentration of their administrative
functions in the Capital District as a first priority, and in the
Core Area as a second priority. Council will:
a) Facilitate land assembly initiatives to increase the
feasibility of lot redevelopment;
b) Work with federal and territorial authorities to identify non-
conforming uses in the Core Area that could be relocated
to enable lot consolidation and redevelopment.
c) Provide opportunities for off-site parking by designating
municipal parking facilities; and,
Capital District
overlay uses
zone
categories
residential uses
Capital District
priorities
building heights
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37
d) Lead by example, locating municipal administrative
functions in the Core Area.
7. Council will reserve the opportunity for a new municipal
complex on the City Hall site. The City will explore the
possibility of a multi-use complex, including recreation,
cultural and community/civic spaces.
8. Locating a new City Hall or multi-use complex in the Core
Area will promote access to municipal services; It should
therefore have access to a Collector Road.
9. The GN is exploring potential relocation of the Legislative
Assembly outside the Capital District. Council will:
a) Reserve lands in Future Development Area A and C for a
possible future capital and complementary uses;
b) Consider establishing a new Capital District on lands
identified as Possible Future Capital District Overlay in
Figure B, by amendment to this plan upon completion of a
Development Scheme for Future Development Area A;
and,
c) Update the Core Area and Capital District Redevelopment
Plan (2005) to re-assess the vocation and purpose of the
existing Capital District, pursuant to policies in Section
5.1.1 of this plan.
5.1.5 Sijjanga District Overlay
Sijjanga is an Inuktitut word describing the beach or waterfront.
The Sijjanga area is important to the land-based economy and
as a cultural and social focal point of the coastal lifestyle.
Locating housing (including Elders' residences), small-scale
commercial activities, and cultural/community amenities close to
beach areas, and supporting traditional lifestyles are priorities for
the Iqalungmiut.
The Sijjanga District includes policies that recognize the
beachfront's pivotal role. Their intent is to protect views to the
sea, access to the beach area, traditional uses, and the low
profile of the existing residential communities. Government
offices and retail uses will be restricted, and only smaller scale
development will be permitted.
Policies:
1. Housing, small-scale institutional uses, and limited
commercial retail activities will be permitted in the Sijjanga
Sijjanga District
overlay uses
zone categories
new municipal
complex
establishment of a
new Capital District
along
Niaqunngusiaq
Section 5
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Iqaluit General Plan By-law No.898
38
District overlay. Large-scale government office uses,
institutional, and commercial uses will not be permitted. Uses
and the scale of development will be restricted in the Zoning
By-law.
2. Council proposes to establish a Sijjanga (S) Zone in the
Zoning By-law.
3. Building heights in the Sijjanga District will be limited to 2
storeys in the Zoning By-law.
4. The Sijjanga District's connection to the sea will be protected
by prohibiting construction of large buildings that restrict
access or views to the beach area. This may be achieved by
restricting lot size, lot frontage, lot coverage, and other zone
provisions in the Sijjanga (S) Zone in the Zoning By-law.
5. To support the continuation of traditional lifestyles, all housing
in the Sijjanga District will be ground-oriented, in that each
unit will have a private entrance.
5.2
Residential
Suitable housing is fundamental to healthy, liveable
communities. Expanding housing choice will improve quality of
life for Iqaluit residents. Council will designate adequate land to
meet the needs of Iqaluit's diverse and growing population.
Iqaluit has distinct neighbourhoods. Older neighbourhoods, such
as Lower Base, Happy Valley, and Apex occupy flat land. Newer
neighbourhoods, such as Tundra Valley, Tundra Ridge, and the
Road-To-Nowhere subdivision stretch across level sections of
ridges at higher elevations.
Iqaluit has a range of housing types, including single family
homes (30%), semi-detached homes and rowhouses (31%),
apartments (38%), and a small number of mobile homes (source:
2006 Census). In recent years, the proportion of apartments has
increased, and that of single-family homes has decreased.
Many Iqalungmiut would prefer single family or semi-detached
homes; however, flat land close to existing roads and services is
becoming scarce and development costs continue to escalate.
The Development Strategy in Section 3 of this Plan indicates that
900 to 2,215 new homes will be needed in the next 20 years; an
average of 43 to 105 homes per year. The City will adopt
policies to phase in a supply of land for a variety of housing.
building heights
zone provisions
development to
support
traditional
Section 5
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39
Although most housing will be built on land designated
Residential Community, as indicated in Figure B, residential uses
are also permitted, with some restrictions, on lands designated
Core Area, Commercial and Institutional. Section 5.2.1 contains
policies that apply to all residential uses, whereas the policies in
Section 5.2.2 apply specifically to the Residential Community
land use designation.
5.2.1 General Residential Policies
The policies in this section apply to all residential uses,
regardless of land use designation. Policies specific to the
Residential Community land use designation as shown on Figure
B are outlined in Section 5.2.2.
Policies:
1. Residential uses include all types of dwellings intended for
human habitation and may be attached to other uses such as
commercial and institutional uses. Residential uses may also
be attached to an industrial use in restricted circumstances.
2. Residential uses will be permitted in the Residential
Community, Core Area designations and may be permitted in
the Institutional, and Commercial designations. Limited
accessory residential uses may be permitted in the industrial
designations.
3. Council proposes to establish a range of zones where
residential uses are permitted as stand-alone uses (R1, R1A,
R2, R3, S, RC) and zones where residential uses are
permitted provided they are located in the same building as
other principal uses (CD, B1, B2, B3, P, M1).
4. Residential infill to consolidate existing built-up areas will be
encouraged where existing roads and municipal services are
available. Other forms of residential intensification, such as
conversions of larger homes or non-residential buildings, will
be permitted subject to the provisions of the Zoning By-law.
5. A professional architectural or geo-technical assessment may
be required for construction on slopes exceeding 25%.
6. To reduce the risk of flooding and erosion, setbacks shall be
consistent with policies in Sections 5.6.8 and 5.6.9.
residential infill
residential uses
defined
designations
where permitted
zone categories
slopes > 25%
watercourse
setback
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40
5.2.1.1 Special Needs Housing
Special needs housing is intended to provide community-based
group living in housekeeping units for three to ten residents
(excluding staff or receiving family) who are supervised and
receive care according to their needs. This Plan recognizes the
necessity for special needs housing as well as the concerns of
Iqaluit citizens. The Plan's provisions will integrate special needs
housing in the community to ensure success and community
acceptance. Special needs homes will be licensed or approved
in accordance with Territorial Statutes.
Policies:
1. Special needs housing is a conditional use in the Residential
Community, Institutional and Core Area designations. Special
needs housing does not include shelters for transient living
(e.g., homeless or women's shelters) which will be defined
separately in the Zoning By-law.
2. The Zoning By-law will define special needs housing and
contain special use provisions to ensure compatibility with
surrounding residential uses.
5.2.1.2 Secondary Suites
Secondary Suites are self-contained units within a single family
or semi-detached dwelling. Self-contained units have their own
food preparation and washing/bathing facilities. Secondary
Suites increase affordability for both the renter and the owner of
the principal dwelling.
Policy:
1. Secondary Suites are generally permitted in detached or
semi-detached homes within the Residential Community and
Core Area designation and shall be regulated in the Zoning
By-law.
5.2.1.3 Mobile Homes
There is an existing mobile home park along Federal Road
adjacent to the Core Area. These homes are in an area of
transition: a broad range of commercial uses is encouraged in
the area west of the mobile home park; the Capital District,
secondary suites
zone provisions
special needs
housing
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41
where government functions will be centralized, borders on the
east. Although the mobile homes are on trucked services, the
land has access to the utilidor system, so the long-term objective
for this area is to transition to higher density commercial and
residential uses serviced by utilidor. Policies permit mobile
homes in low-density residential areas with certain conditions
and create a new location for mobile homes.
Policies:
1. New or expanded mobile homes shall be conditionally
permitted in the Residential Community land use designation,
which shall include provisions to regulate the use.
2. New or expanded mobile homes shall be permitted on a
restricted basis in the Commercial land use designation.
3. Council proposes to establish mobile homes as conditional
uses in the R1 and R1A Zones in the Zoning By-law. These
uses will be subject to conditional use requirements.
4. Council proposes to establish mobile homes as permitted
uses in the B2(1) Zone in the Zoning By-law.
5.2.1.4 Short Term Rentals
Short term rentals are temporary guest accommodations
contained within a dwelling unit and include such uses as bed
and breakfasts as well as the short term letting of a room or
entire house through an online platform or agency. While short
term rentals can provide economic and tourism opportunities for
the City and income for residents, they can also remove housing
stock from the market, and impact full-time residents.
Policies:
1. Short term rentals shall be permitted in all residential zones
and commercial zones where a dwelling unit is permitted.
2. The use of any dwelling unit as a full-time short-term rental
shall not be permitted, save and except for a short-term rental
contained in a secondary suite.
3. The Zoning By-law will define short-term rentals and contain
provisions to ensure they do not create a nuisance where
they are located.
mobile homes
conditional uses
in Zoning By-
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Iqaluit General Plan By-law No.898
42
5.2.2 Residential Community Designation
The policies in this section apply to the Residential Community
land use designation as shown in Figure B of this Plan. General
policies which apply to all residential uses, regardless of
designation, are outlined in Section 5.2.1
Policies:
1. The Residential Community designation will be used primarily
for housing with a range of dwelling types and densities.
2. Supporting uses, such as schools, churches, parks, small
scale commercial, medical clinics, and other local service,
recreational and institutional uses will also be permitted in the
Residential Community designation.
3. Council proposes to establish residential zones (R1, R1A,
R2, R3, RC and S) in the Zoning By-law. To accommodate
institutional, open space, and commercial uses in the
Residential Community designation, Council proposes to
establish an institutional zone (P), an open space zone (OR),
and commercial zones (B1, B2, B3) in the Zoning By-law.
4. Prior to the creation of new lots on land designated
Residential Community, a Plan of Subdivision shall be
approved by Council in accordance with the policies in
Section 8.5.
5. All residential developments in the Residential Community
designation must provide sufficient neighbourhood park
space as per policies described in Section 5.7.
6. Commercial uses within the Residential Community
designation will be limited to uses that are compatible with
residential development in order to provide a full range of
easily accessible commercial and office services, and shall
be subject to the following:
a) Shall be generally limited to sites along Arterial or
Collector Roads, or contiguous with other local service
facilities such as a community centre or education facility.
b) Shall be subject to the provisions of the Zoning By-law.
7. Lands designated Residential Community with Development
Scheme Overlay located north and west of Arctic College, as
shown on Figure B, as amended, are subject to the policies
Residential
Community uses
commercial uses
zone categories
park space
Plateau
Development
Scheme
Section 5
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Iqaluit General Plan By-law No.898
43
of the Plateau Development Scheme, attached as Annex A to
this Plan, in addition to the policies of this Plan.
5.3
Commercial
Commercial activities provide goods and services to residents of
Iqaluit as well as visitors. To ensure that this important sector
continues to meet growing employment, service, and product
needs, the City's policies will include adequate land resources
for commercial uses. Section 5.3.1 contains policies that apply
to all commercial uses, regardless of land use designation.
The Core Area is the centre of economic activity; specific policies
to support commercial uses there are located in Section 5.1.1 of
this Plan. Beyond the Core Area, two areas of concentrated
economic activity are proposed, one on the north side of Federal
Road west of the Core Area, and the other opposite the arena on
Niaqunngusiaq Road. These areas are designated Community
Commercial on Figure B and are subject to the policies in
Section 5.3.2. More limited commercial uses are also permitted
on lands designated Residential Community, Institutional, and
Industrial.
Tourism and the land-based economy, such as harvesting and
other traditional pursuits, are important components of Iqaluit's
economy. Both depend on cultural vitality and a healthy natural
environment. Some aspects of these economic activities are
informal and conducted from home, such as home-based carving
or seasonal hunting. Council will encourage home-based
businesses and establish provisions in the Zoning By-law to
ensure that they do not negatively impact adjacent properties.
5.3.1 General Commercial Policies
The policies in this section apply to all commercial uses,
regardless of land use designation. Policies specific to the
Commercial land use designation as shown on Figure B are
outlined in Section 5.3.2.
1. Commercial uses include a range of retail, office, and
commercial services, including entertainment and restaurant
facilities, tourist accommodations, and vehicle-related
services.
commercial uses
defined
designations
where permitted
Section 5
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2. Commercial uses will be permitted in the Commercial, Core
Area, Residential Community, Institutional, and Industrial land
use designations.
3. Council proposes to establish a range of zones (B1, B2, B3,
and S) where commercial uses are permitted or conditionally
permitted and zones (M1) where they are permitted as an
accessory use.
4. The mixing of commercial uses with institutional and/or
residential uses is encouraged, subject to commercial uses
being on the main floor of the building.
5. Home-based businesses will be permitted in the Zoning By-
law as an accessory use to any residential use (not including
accessory residential uses).
6. The Zoning By-law will contain provisions to ensure that
home-based businesses do not disturb residential
neighbours. These provisions may address the following:
a) Prohibit any home-based business that is or likely to
become a nuisance or hazard caused by noise, odour,
vibration, traffic, parking-generated, or other concerns;
b) Prohibit any home-based business that is or likely to
become a health or fire hazard;
c) Outdoor storage;
d) Outdoor signage.
7. The retail sale and/or consumption of cannabis and cannabis-
derived products shall only be permitted in the B1 and B2
zones, subject to a site-specific amendment to the Zoning By-
law. Refer to Section 5.5.2 for policies related to cannabis
production facilities. Cannabis establishments shall:
a) be setback an appropriate distance from conflicting land
uses such as residential, institutional and recreational
uses, as well as from bars and other cannabis
establishments or production facilities;
b) not be permitted in conjunction with any establishment
where liquor is sold or consumed.
8. Bars shall be conditionally permitted in the B1, B2 and CD
zones, subject to certain criteria. Site specific exceptions to
allow a bar in other zones may be considered subject to an
amendment to the Zoning By-law.
Designations
where permitted
zone categories
mixed-use
development
cannabis
establishments
bars
Home-based
businesses
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Iqaluit General Plan By-law No.898
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5.3.2 Commercial Designation
The policies in this section apply to the Commercial land use
designation as shown in Figure B of this Plan. General policies
that apply to all commercial uses regardless of designation are
outlined in Section 5.3.1
Policies:
1. The Commercial designation will include commercial
activities such as retail stores, service establishments,
offices, entertainment and recreation, restaurants, tourist
facilities, and automobile-related uses. Bars, cannabis
establishments and residential uses may be permitted.
2. Lands designated Commercial shall generally be limited to
sites along Arterial or Collector Roads, or contiguous with
other local service facilities such as a community centre or
education facility.
3. Commercial uses permitted on lands in the Commercial
designation may generate significant traffic. Accordingly,
adequate off-street parking will be provided relative to the
needs of the various uses.
4. Back-out parking spaces will not be permitted in the
Commercial designation where the site access is along a
Collector Road. Access to properties will be controlled to
ensure the safety of patrons as well as proper functioning of
the adjacent roads.
5.4
Institutional
Institutional services meet the day-to-day needs of residents and
include schools, day-care facilities, churches, clubs, medical
clinics, social service agencies and organizations.
Many of Iqaluit's major institutional uses, such as City Hall, the
Legislative Assembly and Nakasuk School are located in the
Core Area and are permitted uses within this designation.
Similar institutions outside the Core Area, such as the Qikiqtani
Regional Hospital, the men's and women's correctional facilities,
Joamie School, and the AWG Complex Arena are designated
Institutional as indicated in Figure B of this Plan.
Commercial
designation
uses
orientation to
roads
off-street
parking
Back-out
parking
restriction
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Smaller institutional uses may be located within the Residential
Community, Commercial and Open Space designations. Section
5.4.1 contains policies that apply to all institutional uses,
whereas the policies in Section 5.4.2 apply specifically to the
Institutional land use designation. Section 5.4.3 contains policies
for cemeteries.
5.4.1 General Institutional Policies
The policies in this section apply to all institutional uses
regardless of land use designation. Policies specific to the
Institutional land use designation as shown in Figure B are
outlined in Section 5.4.2.
Policies:
1. Institutional uses include educational, health care, social,
religious, cultural and community facilities.
2. Institutional uses will be permitted in the Institutional and
Core Area land use designations, with more limited
institutional uses permitted in the Residential Community,
Commercial and Open Space designations.
3. Major institutional uses outside the Core Area, such as
hospitals, correctional facilities, schools and community
facilities shall be designated Institutional.
4. Council shall consider institutional uses in the Residential
Community and Open Space designations, where permitted,
and the Sijjanga District provided that the following are
addressed:
a) The proposed use is integrated with the built form and
open spaces of the larger area with respect to building
mass, height, proportion, and position relative to the
street;
b) The use shall not detract from the primary function and
use of the area;
c) Potential impacts such as sun shadowing, loss of views,
and traffic generation are mitigated.
5. Council proposes to establish a Public/Institutional (P) Zone
in the Zoning By-law.
6. The mixing of institutional uses with commercial and/or
residential uses is encouraged, subject to commercial uses
being on the main floor of the building.
designations
where permitted
zone category
major
institutional
mixing of uses
institutional
uses defined
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47
7. Schools and other public facilities will be promoted as multi-
purpose centres for community activities.
8. Council shall consider allowing shared parking facilities with
adjacent uses.
9. Secondary schools shall have access from an Arterial or
Collector Road. The walking trail system should connect to
school sites.
10. Day care facilities, senior citizen, and community group
activities shall be permitted as main uses where major
commercial and institutional uses are permitted, or as
accessory uses in churches, schools and other institutional
uses.
11. Council shall continue to monitor the adequacy of its public
facilities and ask other agencies to assess the adequacy of
their public services and facilities to ensure that suitable sites
are secured for new or expanded facilities.
5.4.2 Institutional Designation
The policies in this section apply to the Institutional land use
designation as shown in Figure B of this Plan. General policies
which apply to all institutional uses regardless of designation are
outlined in Section 5.4.1.
Policies:
1. The Institutional designation will include major institutional
uses located outside the Core Area, such as hospitals,
correctional facilities, schools and community facilities.
2. Consideration will be given to locating a major institutional
use that generates a significant amount of traffic where
surrounding uses are not adversely affected by it.
5.4.3 Cemetery Symbol
The existing cemetery in Lower Iqaluit, identified by a Cemetery
symbol in Figure B, is nearing capacity. This symbol also
identifies possible future cemetery sites to ensure that the use is
considered before permitting any development on the land.
secondary
schools
day-care &
seniors' facilities
monitoring
traffic
considerations
Institutional
designation uses
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48
Policies:
1. Cemetery sites shall be identified by a Cemetery Symbol in
Figure B.
2. The location for a future cemetery site is identified in Figure
B; the site will be zoned appropriately in the Zoning By-law.
3. When approving a cemetery site, Council shall consider the
following:
a) ground and drainage conditions;
b) access to the site;
c) input from the community, particularly elders.
5.5
Industrial
Industrial activity in Iqaluit contributes to employment, so it is
essential to designate adequate land for this use. Three major
areas are so designated, as shown in Figure B of this Plan: the
West 40, North 40, and Upper Base areas.
The West 40 Area includes the former airstrip, the fuel storage
tanks, the sewage lagoon and treatment plant, and the current
landfill site. Much of the land is owned by the Iqaluit
International Airport (Government of Nunavut). There is a
proposal to surplus this land to the City in the future. The West
40 is the only local industrial area with sufficient flat land for
heavy industrial uses such as manufacturing and processing, as
well as hazardous goods storage. Locating these uses in the
West 40 will mean proximity to the new port facility proposed at
Inuit Head. However, the only access to Sylvia Grinnell
Territorial Park Reserve crosses the area, so appropriate
screening and development controls will be needed to maintain a
safe and attractive entrance to the park.
The North 40 Area northeast of the Airport currently has a mix of
industrial, institutional and open space uses. Some portions are
serviced by piped sewer and water, while others have only piped
water. The northwest end of the North 40 has no piped
municipal services; eventually, it is intended to accommodate
light industrial uses, transitioning to office, retail and residential
uses that complement the Core Area.
As available industrial land continues to dwindle, additional
parcels along the road to Upper Base will be surveyed to
future cemetery
sites
evaluation
criteria
Section 5
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Iqaluit General Plan By-law No.898
49
accommodate light industrial uses. It is unlikely that piped water
and sewer services will be provided for these uses in the short-
to-medium term. Due to the topography and distance from
emergency services, these lands are not considered suitable for
heavier industrial uses.
Section 5.5.1 contains policies that apply to all industrial uses,
whereas the policies in Section 5.5.2 and 5.5.3 apply to the Light
Industrial and Heavy Industrial land use designations
respectively.
5.5.1 General Industrial Policies
The policies in this section apply to all industrial uses, regardless
of land use designation. Policies specific to the Industrial land
use designation, as shown in Figure B, are outlined in Section
5.5.2.
Policies:
1. All development proposals for industrial uses that include
bulk storage of fuel and hydro power generation, or those
requiring a permit or authorization from the Government of
Canada or Territorial Government, will be forwarded to the
Nunavut Planning Commission for review. The Commission
will determine if the project is in conformity with the applicable
land use plan and if it is exempt from screening. If a project is
not exempt from screening, the Commission will send the
project to the Nunavut Impact Review Board for screening
and determination as outlined in the Nunavut. Planning and
Project Assessment Act S.C. 2013, c.14, s.2.
5.5.2 Light Industrial Designation
The policies in this section apply to the Light Industrial land use
designation as shown in Figure B of this Plan. General policies
which apply to all industrial uses, regardless of designation, are
outlined in Section 5.5.1.
Policies:
1. Permitted uses in the Light Industrial designation will include
service-oriented industrial uses, such as lumber yards, repair
and rental establishments, recycling facilities, and
Review by
Nunavut
Planning
Commission
Light Industrial
designation uses
Section 5
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Iqaluit General Plan By-law No.898
50
commercial uses such as vehicle sales and service, repair
services, distribution services, open storage facilities,
warehouse and wholesale establishments. Light
manufacturing uses that will not create negative impacts on
surrounding properties may also be conditionally permitted.
Accessory retail uses and accessory dwelling units for a
facility manager or employee may be permitted.
2. Council proposes to establish a Light Industrial (M1) Zone in
the Zoning By-law.
3. Council shall limit Light Industrial designated lands to the
North 40 and Upper Base areas.
4. Open storage areas in the Light Industrial designation shall
be set back an appropriate distance from main roads and
located on the site in a way that minimizes views from the
road and any adjacent properties. Open storage will be
subject to the following:
a) Open storage shall be in accordance with the Zoning By-
law, and a chain link fence will be erected around the
open storage;
b) Other view mitigation measures may be considered as
alternatives to a fence.
5. The production and distribution of cannabis shall only be
permitted in the M1 zone, subject to a site-specific
amendment to the Zoning By-law. Refer to Section 5.3.1 for
policies related to cannabis establishments. Cannabis
production facilities shall be:
a) Setback an appropriate distance from conflicting land
uses such as residential, institutional and recreational
uses, as well as from bars and other cannabis
establishments or production facilities;
b) Connected to piped water and sewage services; and
c) Designed such that all storage is enclosed.
6. Adequate off-street parking and loading spaces shall be
provided for uses in the Industrial designation and shall be
set out in the Zoning By-law.
5.5.3 Heavy Industrial Designation
The policies in this section apply to the Heavy Industrial land use
designation as shown in Figure B of this Plan. General policies
which apply to all industrial uses, regardless of designation, are
outlined in Section 5.5.1.
zone category
North 40 and
Upper Base
Areas
open storage
cannabis
production
facilities
off-street
parking &
loading
Section 5
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Iqaluit General Plan By-law No.898
51
Policies:
1. Permitted uses in the Heavy Industrial designation will
include manufacturing, processing, assembling and
fabricating establishments, and storage of fuel and hazardous
materials. They will also include water and sewage treatment
plants, power generation plants, and waste disposal and
processing facilities. Accessory dwelling units for a facility
manager or employee may be permitted subject to a Zoning
By-law Amendment. Light industrial uses will not be permitted
in this designation, in order to reserve an adequate supply of
land for heavy industrial uses.
2. Council proposes to establish a Heavy Industrial (M2) Zone in
the Zoning By-law.
3. Council shall limit Heavy Industrial designated lands to the
West 40, the old gravel pit in the North 40, and the complex
adjacent to Lake Geraldine which contains the power plant,
water treatment and water storage facilities. An open-space
buffer is provided around the access to Sylvia Grinnell
Territorial Park Reserve to reduce encroachment of industrial
development.
4. Open storage areas in the Heavy Industrial designation shall
be set back an appropriate distance from main roads and
located on the site in a way that minimizes views from the
road and any adjacent properties. Open storage on
properties along the access route to Sylvia Grinnell Territorial
Park Reserve will be subject to the following:
a) Open storage shall be in accordance with the Zoning By-
law, and a chain link fence will be erected around the
open storage;
b) Other view mitigation measures may be considered as
alternatives to a fence.
5. Adequate off-street parking and loading spaces shall be
provided for uses in the Heavy Industrial designation and
shall be set out in the Zoning By-law.
6. The City will work with the Iqaluit International Airport to
transfer that portion of the West 40 lands consisting of the old
airstrip, currently owned by the Government of Nunavut, to
City ownership, pursuant to the policies in the Iqaluit Airport
Master Plan. Appropriate decontamination procedures will be
considered a prerequisite to any transfer of West 40 lands
from the GN to the City.
Heavy Industrial
designation uses
zone category
West 40, North
40 and Lake
Geraldine areas
open storage
off-street
parking &
airport land
transfer
Section 5
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52
5.6
Open Space Designation
The Open Space designation is intended to restrict most types of
development and link open spaces to form access corridors to
the land and sea. Open Space areas include the shoreline,
beach areas, large parks, and those portions of the Walking Trail
system not located in the road right of way. Most of the land
within the Open Space designation is Commissioner's Land.
The City's Recreation Master Plan identifies the need for a
Waterfront Study to improve the design and function of this
important cultural and recreational area. This Plan supports the
call for a Waterfront Study.
Although not designated Open Space in this Plan, community
parks in the Residential Community and Core Area designations,
as well as parks in the Future Development Areas, will be zoned
as Open Area (OR) Zones in the Zoning By-law.
An existing firing range near the end of the Road to Nowhere will
be decommissioned and moved to the old Road to Nowhere
sand pit. Because of noise, firing ranges will be restricted to
areas where they do not interfere with non-compatible uses (e.g.
residential). They must also comply with environmental
protection standards.
Policies:
1. Uses permitted in the Open Space designation will be
primarily recreational facilities with no associated buildings,
such as playgrounds, parks, playing fields, walking trails,
natural areas, camping and tenting areas.
2. Council shall consider permitting community-oriented and
culturally significant public buildings, such as an
archaeological or cultural interpretation centre, or providing a
public amenity in the Open Space designation provided that:
a) The use shall not detract from the primary function and
use of the area; and
b) Potential impacts such as sun shadowing, loss of
important views, and traffic generation are mitigated.
3. Council proposes to establish an Open Area (OR) Zone in the
Zoning By-law.
Open Space
uses
criteria for
public buildings
in Open Space
zone category
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53
4. Where possible, Open Space designated lands shall be
linked to form an open space network. In designating new
Open Space, Council shall consider the following:
a) The location of Walking Trails and Snowmobile Trails as
shown in Figure C of this Plan;
b) Policies for Walking Trails and Snowmobile Trails in
Section 6 of this Plan;
c) Links with adjacent residential and commercial areas;
d) Links through the Populated Area to Nuna; and
e) The parks and recreation policies in Section 5.7.
5. Shacks for harvesting purposes and traditional use, but not
for habitation, will be permitted in beach areas of the Open
Space designation subject to permission from the landowner.
6. Unless otherwise noted, all Commissioner's Land forming
part of the 100-foot strip (30.5 m) along the shoreline of the
seacoast (measured from the ordinary high-water mark as of
the date of ratification of the Nunavut Land Claims
Agreement -1993) will be designated Open Space. Because
climate change may alter sea levels during this plan's
timeframe, ongoing monitoring of sea levels should be
undertaken pursuant to policies in Section 7. Sea level
changes may affect the lands forming the 100-foot strip.
7. Rock outcroppings shall be designated Open Space,
recognized as an asset to the community, and retained in
their natural state as much as possible.
8. To reduce risk of flooding and erosion, no development is
permitted within 30.5 metres of the normal high-water mark of
lakes, or where there is a defined bank, 15 metres from the
top of the bank. For streams and rivers, the setback will be
30.5 metres from the centreline of the stream or river.
Development is defined as a change of land use, or the
construction of buildings and structures requiring a
Development Permit. The development of walking trails,
snowmobile trails, and municipal infrastructure is exempt
from this provision.
9. Exceptions to the required setback outlined above will be
considered in situations where drainage courses appear only
during the spring runoff, or on existing lots where historical
development in the area makes it unreasonable to demand or
impossible to achieve minimum setback distances.
Exceptions for smaller development proposals will be at the
discretion of the Development Officer. Where an exception is
requested for large developments, the alternative setback will
open space
network
beach shacks
Exceptions to
watercourse
setbacks
beach shacks
100-foot strip
protection of
rock
outcroppings
watercourse
setbacks
exceptions to
watercourse
setbacks
Section 5
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Iqaluit General Plan By-law No.898
54
be defined in a report/study approved by the Development
Officer. The report will address the following:
a) Slope of the bank and geotechnical considerations related
to unstable slopes;
b) Natural vegetation and the nature of the setback area;
c) Nature of the abutting water body, including spring run-off
and stormwater management;
d) Existing and proposed pedestrian and snowmobile trails;
e) Improvements to the natural vegetation and drainage
system;
f) Appropriate mitigation measures.
10. Council will undertake a Waterfront Study to design
improvements as indicated in the Recreation Master Plan,
extending from the sealift beach in Lower Base to the
cemetery at the east end of Lower Iqaluit. The Waterfront
Study shall consider the following:
a) Reclamation and enhancement of the existing sealift area
for community uses in association with the construction of
the new port facility at Inuit Head.
b) Benches, lights and rest areas leading to and along the
breakwater;
c) Connections to the Apex Trail system and improvements
to the beach at the Hudson's Bay buildings;
d) Additional waterfront access between North Mart and the
Elders' Centre;
e) A boardwalk or trail along the beach;
f) Access for snowmobiles and vehicles with boats and
other equipment to the sea and pack ice.
11. Council proposes to establish an Open Area Special
Exception 1 - OR (1) Zone in the Zoning By-law to designate
the location of firing ranges, specifying development and
signage provisions. Any new firing range will require a Zoning
By-law amendment, subject to the following criteria for
consideration by Council:
a) proximity to residential or other non-compatible uses;
b) environmental sensitivity of the area; and
c) access to the site.
firing ranges
Waterfront
Study
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55
5.7
Parks and Recreation
The Recreation Master Plan outlines the use of parks and
recreation services to improve quality of life for Iqaluit residents.
Land must be reserved to ensure that the goals of this Plan are
achieved. Besides implementing the approved Recreation
Master Plan as updated, Council will be guided by the following
policies in preserving and developing land for parks and
recreation.
Policies:
1. Parks will be permitted within all land use designations
except those used for or adjacent to solid waste management
and/or sewage treatment facilities.
2. Council will establish an Open Space (OR) Zone in the
Zoning By-law.
3. In reserving land for parks or choosing sites for recreational
facilities, Council will consider the recommendations of the
Recreation Master Plan, as updated.
4. New residential development areas will have a minimum 0.5-
hectare neighbourhood park to serve households within a
500-metre radius. Neighbourhood parks shall have
playgrounds suitable for all children and other park elements
such as a basketball pad, formal playing field, rink and open
play areas.
5. New park spaces can be integrated with school sites or
located on lots with other community or institutional uses.
6. Council will try to acquire or dedicate new areas for
neighbourhood parks in underserviced neighbourhoods
(where the 500-metre radius in Policy 5 is not met) or where
redevelopment is occurring. Council will develop a plan to
bring existing neighbourhoods up to this standard.
7. Council will consider the following in the design of
playgrounds:
a) Access to power to allow for appropriate lighting or other
uses.
b) Minimizing exposure to snow-drifting and prevailing
seasonal winds to ensure the comfort of users.
c) The use of grading and large timber or rocks to create
landforms for sliding and define the park space and
circulation patterns.
zone category
parkland
designations
where permitted
design of
playgrounds
new parks in
underserviced
areas
parkland ratio
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d) The introduction of sculptural elements, such as timbers,
to create interesting snow deposits and patterns.
Source: Core Area Secondary Plan, 1998
8. Council will consider creating "dog parks" in key locations,
small fenced-in areas that allow dogs to be off-leash.
9. Council will identify and protect areas with prominent views or
adjacent to water that would make attractive and comfortable
picnic areas.
10. Council will explore options for moving the baseball field from
the North 40 Industrial area to a new, more accessible
location.
11. Council shall consider locating an additional youth centre in
the Core Area that would be more accessible to youth living
there and in surrounding neighbourhoods.
5.8
Historical and Cultural Resources
Cultural and social traditions are central to policies guiding land
use decisions in Nunavut. The City recognizes the importance of
Iqaluit's rich historical and cultural resources. Cultural resources
are "any site, object, structure or landscape that has importance
to the members of a community or culture".1 They include, but
are not restricted to, archaeological, cultural and burial sites,
buildings and structural remains of historical and architectural
value, and districts or landscapes of historic and scenic interest.
Developments like road building, housing, commercial activity,
sewage and solid waste treatment facilities, and even tourism
and recreation facilities all have the potential to damage or
destroy cultural resources.
1 Archaeological Site Inventory and Assessment: Final Report (Timescapes Consulting)
picnic areas
relocation of
baseball field
dog parks
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57
Archaeological resources are generally included in the broader
definition of cultural resources; they relate to sites, artefacts, or
associated objects that have been abandoned for 50 years or
more. A report commissioned by the Government of Nunavut,
Archaeological Site Inventory and Assessment (1999),
recommends that all development proposals include a review of
known archaeological resources to ensure that site surveys and
assessments are completed prior to any action. In accordance
with Government of Nunavut policy, archaeological sites are not
designated on any Figures of the Plan, to protect them from
disturbance and/or poaching of artefacts.
Policies to identify and protect important cultural resources, with
the exception of archaeological sites, are located in Section 5.8.1
and are designated in Figure B.
Policies:
1. Council will encourage public involvement in the
identification, conservation, protection, restoration,
maintenance and enhancement of cultural heritage
resources.
2. Documented cultural resources within the Populated Area
boundary are identified with a Cultural Heritage symbol in
Figure B of this Plan. As additional resources are
documented, they will be identified in either Figure A or B by
amendment to this Plan.
3. The City shall undertake a community mapping exercise to
identify all significant cultural resource sites. The resulting
map will be consulted as part of the approval process for any
development application, to minimize negative impact and,
where possible, enhance the site. Priority should be given to
sites within the Populated Area boundary.
4. All new development permitted by the policies of this Plan will
respect cultural resources and, wherever possible,
incorporate them into new development plans.
5. All new development will be planned so as to preserve and
enhance the context of cultural resources.
6. Both traditional and modern access corridors to the land and
sea will be recognized as important cultural resources; they
will be protected as described in the policies in Section 5.6.
public
involvement
mapping cultural
resources
new
development
access corridors
Cultural
Heritage symbol
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7. Council may, by a by-law under Section 106 of the Cities,
Towns and Villages Act, as amended:
a) designate properties to be of historic or architectural value
or interest;
b) designate any area or areas within the City as a cultural
heritage resource.
8. Council will set an example in stewardship and lead the
community in restoring, rehabilitating, enhancing and
maintaining cultural resources owned by the City.
9. Council may participate in the protection of significant cultural
heritage resources through acquisition, assembly, resale,
joint ventures or other involvement leading to the sensitive
conservation, restoration or rehabilitation of those resources.
10. Council may utilize available government or non-government
funding programs to implement cultural heritage conservation
policies. The City will co-operate with other levels of
government, private agencies and individuals in the
conservation of cultural heritage resources, as appropriate. It
will co-ordinate its heritage plans and programs with those of
higher levels of government.
11. Council may provide venues for carvings and murals to
encourage cultural expression.
5.8.1 Cultural Heritage Symbol
The City will rely on data from a community mapping exercise,
updated periodically, to identify significant cultural sites and
protect them from potentially damaging development. A number
of sites were identified during this Plan's public consultation
process, as well as previous planning exercises. With the
exception of archaeological sites, these sites are identified with a
Cultural Heritage symbol in Figure B of this Plan.
Policies:
1. Cultural resources, including traditional picnic and camping
areas, the Hudson's Bay Company outpost in Apex, and dog
team areas shall be identified by a Cultural Heritage Symbol
in Figure B.
2. Any new cultural resources shall be identified by a Cultural
Heritage Symbol in Figure B by amendment to this Plan.
new Cultural
Heritage symbol
designating
properties/areas
City-owned
resources
City initiatives
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3. In approving development close to a Cultural Heritage
Symbol or known archaeological site, Council shall consider
the following:
a) Potential impacts on the cultural resource;
b) Ways to mitigate these impacts, where possible;
c) Ways to enhance the cultural resource, where possible;
d) Introducing a development buffer.
4. The Nuna and Open Space designations are most
appropriate for sled dog areas, subject to the City's Canadian
Inuit Dog and Dog Team By-law as amended.
5.9
Future Development Area Designation
Based on projected growth of the community, the City must set
aside sufficient land for future housing, services and
employment. The necessary lands will be designated Future
Development Area. The intent is to:
identify and set aside areas suitable for development; and
plan in consultation with the community by adopting
Development Schemes which follow the Land
Development Guidelines.
Policies:
1. No development will be permitted in a Future Development
Area without an amendment to this Plan; it will be subject to:
a) Assessment and justification of need for new residential
and/or non-residential lands (infill and redevelopment will
be given priority as outlined in Section 3.3);
b) Adoption of a Development Scheme in accordance with
the Land Development Guidelines outlined in Section 8.6.
2. To reserve land for future development, Council will zone
land in all Future Development Areas as Municipal Reserve
(MR) in the Zoning By-law.
3. New Future Development Areas may be designated in the
Plan with the following conditions:
a) New areas will be within the Populated Area boundary, as
indicated in Figure B.
b) Expansion of the Populated Area boundary will be
considered only under the 5-year Plan review process as
described in Section 3.3.
evaluation
criteria
dog teams
Future
Development
Area
zone category
designating
new Future
Development
Areas
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4. Three Future Development Areas are identified in Figure B.
The shape of each Area is defined by natural constraints
(steep slopes, waterbodies, rock outcrops, etc.), community
constraints (land ownership, setbacks from snow fencing,
significant areas, proximity to existing community, etc.) and
infrastructure constraints (feasibility and cost of extending
piped services, sewage lift station service area, etc.). The
three Areas are generally defined as follows:
a) Area A, which includes developable lands on both sides of
Niaqunngusiaq Road between the AWG Arena and the
natural slope down to Apex.
b) Area B, which includes lands along the Road to Nowhere
between the Lake Subdivision and the Niaqunguk River.
c) Area C, which includes lands located on a ridge east of
Tundra Valley and below the AWG Arena.
5. A portion of Area A and all of Area C are subject to a GN
Reserve on possible sites for a new Legislative Assembly
building and a heritage centre. The GN is studying the
feasibility of this construction and assessing the sites.
6. Phased development is an option in Future Development
Area A, with construction of a new Legislative Assembly
building and heritage centre on Reserved areas preceding
any development on the remaining lands, subject to the
following:
a) No development will occur on GN Reserve lands until
a Development Scheme for Future Development Area
A has been adopted by Council.
b) Notwithstanding any interim servicing arrangement,
GN Reserve areas will be subject to on and off-site
development costs in Future Development Area A,
which will be determined in accordance with the City's
Land Administration By-law.
7.
If the GN decides against the use of Future Development
Area C for a new Legislative Assembly building, the area
will be redesignated Open Space.
5.9.1 Development Scheme Overlay
All Future Development Areas require a Development Scheme
prior to development and are subject to the policies of Section
8.4 in the Implementation Section of this Plan. Development
Schemes provide detailed information and direction in
developing an area. They are attached as Annexes to this Plan
GN Reserves
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and constitute a part of it. Policies in the Development Scheme
are additional to policies elsewhere in the Plan. Areas subject
to a Development Scheme will be identified in Figure B of this
Plan.
Policies:
1. Lands subject to a Development Scheme adopted by Council
shall be identified in Figure B with a Development Scheme
Overlay.
2. Development Schemes shall be attached to the General Plan
as Annexes and shall constitute a part of the General Plan.
3. Where there is a conflict between the overall policies of the
Development Scheme and policies elsewhere in this Plan,
the policies of the Development Scheme prevail.
5.10 Federal Road Special Policy Overlay
Federal Road is the main service road through the North 40
industrial area, which connects with the Core Area at the Four
Corners intersection. The eastern portion of the North 40
contains light industrial uses, including warehousing and open
storage, building supply stores, and contractors' workshops.
There are also some small non-industrial offices. A large parcel
of vacant Inuit-owned lands stretches from Sikituuq Court to the
creek that divides the North 40. The developable portion of
these lands is approximately 9 hectares.
There is strong potential for long-term renewal and
redevelopment on lands in the eastern portion of the North 40,
such as a new terminal building for Iqaluit International Airport,
which could catalyze new development in the Federal Road
corridor. The City has completed preliminary studies for an
arterial by-pass road connecting Niaqunngusiaq Road to Federal
Road via Masak Court. Additional road connections may occur
in Phase 4 of the Plateau Subdivision. Federal Road currently
has some piped water; installation of piped sewers would enable
higher intensity uses, such as commercial and residential,
particularly on the large parcel of vacant Inuit-owned land.
The unique attributes of this area have led to its selection as part
of a special policy overlay. Overlay policies are an addition to
the policies of the underlying land use designation, and could
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62
support change in land uses to commercial, institutional and
residential. Where there is a conflict, the policies of the overlay
prevail.
Policies:
1. For lands located within the Federal Road Special Policy
Overlay, as shown in Figure B of this Plan, Council will permit
the uses of the underlying land use designation. Commercial
uses consistent with the municipal servicing policies in
Section 7 will be conditionally permitted; their range will be
identified in the Zoning By-law.
2. Council will establish a District Commercial (B2) Exception
Zone and a Light Industrial (M1) Exception Zone in the
Zoning By-law consistent with the boundaries of the Federal
Road Special Policy.
3. Council will study the feasibility of transitioning the overlay
lands, or a portion thereof, to a mix of commercial, residential
and/or institutional uses. The study will consider the
following:
a) Feasibility and cost of extending sewer services to the
lands;
b) Identification of lands that could be serviced by municipal
water and sewer;
c) Recovery of servicing costs by the City (e.g., off-site
levies, cost sharing agreements);
d) Landowners' and leaseholders' support of and
enthusiasm for extension of services and the associated
costs, where applicable;
e) Impact of the future by-pass road on the lands;
f) The range of uses and densities of development
appropriate for the lands;
g) Whether the lands could be considered for inclusion in the
Core Area.
4. The lands affected by the overlay are subject to a
Development Scheme or Schemes prior to any change in
land use designations.
zone
categories
Federal Road
Special Policy
overlay uses
Federal Road
Study
Development
Scheme
Section 5
Populated Area Land Use Policies
Iqaluit General Plan By-law No.898
63
5.11 Transportation Facility Designation
Iqaluit is a major transportation centre. Transportation may be
the single largest land use in Iqaluit, most notably the Iqaluit
Airport, the sea-lift site, and the major air navigation
communications systems. These lands are designated
Transportation Facility to allow specific policies that protect them
from operational interference. This is essential to ensure safe air
travel and adequate provision of goods by air and sea.
With the growth of Iqaluit, improved marine facilities will be
required to move goods, and for tourism and recreation
amenities and safety. The GN and City have studied the
feasibility of a new deep seaport and small craft harbour facility
at the end of the West 40 Causeway (Akilliq Road) and Innuit
Head. The GN has also studied the feasibility of a small craft
harbour and boat launch at the Municipal Breakwater. When the
deep seaport project is completed, the City envisions
rehabilitation of the current sea-lift site and its redesignation for
community-oriented waterfront activities.
The Iqaluit International Airport is vital in providing the only year-
round access to the community. The airport property is currently
owned by the Iqaluit International Airport Authority, with portions
of airport lands leased to federal and commercial tenants for
aviation-related uses.
The Airport Master Plan (April 1999), addresses needed
upgrades related to increased use of the airport. It recommends
restrictions for the "Outer Surface Area" (circular plane with
4,000 m radius) and reviewing development applications within
the Noise Cone near the airport.
The airport lies within the Populated Area and close to the Core
Area and residential areas, so it may not be practical or
desirable, from residents' point-of-view, to limit development
because of airport noise. However, any application for
development that may impact airport operations should be
reviewed by the Airport Manager prior to approval.
Policies:
1. Areas designated Transportation Facility, as shown in Figure
B, will be used primarily for transportation facilities, including
Section 5
Populated Area Land Use Policies
Iqaluit General Plan By-law No.898
64
the sea-lift area, the airport, and associated air navigation
communications systems.
2. Permitted uses in the Transportation Facility designation
include all activities related to air traffic, marine facilities and
their accessory uses.
3. Council proposes to establish a Transportation (T) Zone in
the Zoning By-law.
4. The Iqaluit Airport Master Plan, as updated, will be reflected
in the General Plan and Zoning By-law.
5. Council shall not permit development in the flight path or non-
compatible land uses near the Airport that could jeopardize
operation and safety through hazards such as emissions or
birds.
6. Any application for development that could impact airport
operations shall be referred to the Airport Manager, Iqaluit
International Airport. Development in the vicinity of the
airport must conform to the relevant Airport Zoning
Regulations enacted under the Aeronautics Act.
7. Council will ensure non-interference with the air navigation
communications system (NAV Can VOR/DME site) located at
the top of Niaqunngusiaq Road facing the arena, through the
following:
a) Designate the air navigation communications site a
Transportation Facility;
b) Prohibit any development, obstructions, buildings or
equipment within a 150m radius of the antenna array;
c) Restrict development within a 300m radius of the antenna
array in accordance with provisions set out in the Zoning
By-law;
d) Any proposed development that does not meet these
standards shall be referred to NAV Can for review and
comment.
8. Council will ensure non-interference with the air navigation
communications system (NAV Can radar) located at the top
of Upper Base near the old tank, by:
a) Designating the air navigation communications site, a
Transportation Facility;
b) Prohibiting any building or structure exceeding a height of
5 metres below the geodetic height of the radar tower
platform within 300 m of the radar tower;
permitted
uses
zone category
Iqaluit Airport
communications
VOR/DME site
airport
hazards
Section 5
Populated Area Land Use Policies
Iqaluit General Plan By-law No.898
65
c) Prohibiting any building or structure exceeding the
geodetic height of the radar tower platform between 300
and 1,000 m of the radar tower;
d) Referring any proposed development that does not meet
these standards to NAV Can for review and comment.
9. Council will ensure non-interference with the air navigation
communications system (NAV Can NDB site) located in the
West 40, through the following:
a) Designate the air navigation communications site a
Transportation Facility;
b) Prohibit any development within 150m of the NDB site.
communications
NDB site
Section 6
Mobility
Iqaluit General Plan By-law No.898
66
SECTION 6
MOBILITY
According to the 2006 Census, 59% of Iqaluit residents
commuted by car or truck, while 32% walked. The remaining 8%
used other means, such as snowmobile, all-terrain vehicle
(ATV), or taxi. These figures reveal a dramatic shift in
commuting patterns over the last ten years; in 1996, nearly equal
numbers commuted on foot and by car or truck. This suggests
that, as population and traffic increase, targeted investments in
road improvements will be essential. However, emphasis should
be placed on pedestrian amenities to encourage walking as part
of a healthy lifestyle.
The Census also indicates a twofold increase in the use of
snowmobiles and ATVs, primarily to access the land and sea ice.
Bicycles are used for getting around during the summer months.
Incompatibilities exist among these modes of transportation; their
separation, where appropriate, will ensure safe and convenient
travel routes.
6.1
Transportation Master Plan
Iqaluit has a projected population of 13,050 by 2030. Vehicle
ownership and use are on the rise. A Transportation Master Plan
will be needed to support development outlined in this Plan,
assist decisions on transportation infrastructure improvements
and programs, and provide a basis for budget planning. It should
be reviewed and updated in conjunction with the five-year review
cycle of the General Plan. Amendments to the General Plan may
be required as a result of adopting such a Plan.
Policies:
1. Council will consider adopting a Transportation Master Plan,
which would include:
a) An overview of existing and future transportation
conditions;
b) Strategic directions or goals for transportation
infrastructure and services;
Transportation
Master Plan
Section 6
Mobility
Iqaluit General Plan By-law No.898
67
c) Pedestrian walkway design and phasing of improvements;
d) Walking and snowmobile trail design that addresses safe
and convenient off-road movement in both modes;
e) Phasing of improvements to walking and snowmobile
trails;
f) Strategies for safe movement of snowmobiles through
town;
g) Recommendations for a transit or quasi-transit (e.g.,
shared taxi) system addressing public benefit, economic
efficiency, accessibility, and required infrastructure;
h) Review of road classification system and right-of-way
protection;
i) Road safety and design;
j) Parking facilities, rates, and location;
k) Infrastructure projects required to support the 2030
projected population;
l) Implementation strategy, including capital works plan,
costs, and identification of funding measures.
2. The Transportation Master Plan, if adopted, should be
reviewed and updated in conjunction with 5-year reviews of
the General Plan.
3. Council will work with relevant Government of Nunavut and
federal agencies on development of the Transportation
Master Plan.
6.2
Pedestrian Walkways, Walking Trails, & Cycling
Routes
Although roads are important to future development of the City,
many people do not own a vehicle and rely on walking or cycling,
particularly during the summer months, as their primary means
of transportation. Following the study Design and Development
of Walking Trails (2002), the City made strategic investments to
improve the pedestrian environment, particularly in and around
the Core Area.
Off-road walking trails and walkways at the side of road
allowances create safe and convenient walking environments for
pedestrians to access open spaces, schools and get around the
City. A network of Walking Trails and Snowmobile Trails is
shown in Figure C.
Section 6
Mobility
Iqaluit General Plan By-law No.898
68
Policies:
1.
Walking trails, as identified in Figure C, will be protected
through legal easements or land acquisition, where
possible.
2.
Should any land be developed in the vicinity of a
designated Walking Trail, Council will ensure that
pedestrian access is maintained or that the trail is rerouted
in a satisfactory manner. Rerouted trails shall not be
located on the road right-of-way.
3.
Council shall authorize the building of Pedestrian
Walkways on Arterial and Collector Roads, wherever
possible, in accordance with the following:
a)
Preference shall be given to building Pedestrian
Walkways on both sides of the street within the Core
Area, in accordance with the policies in 5.1.1 and
5.1.2;
b)
If it is not possible to provide Pedestrian Walkways on
both sides of the street, a Pedestrian Walkway should
be provided on the side of the road opposite the
utilidor; and
c)
Pedestrian walkways shall be for the exclusive use of
pedestrians; the design should discourage vehicle
use, including bicycles.
4.
Council shall give priority to developing Pedestrian
Walkways on Mainstreets, as defined in Section 5.1.1, and
along the Collector Road connecting the Core Area to the
entrance to Sylvia Grinnell Territorial Park Reserve (Akilliq
Drive).
5.
Access to schools using Pedestrian Walkways and/or
Walking Trails shall be reviewed with the Department of
Education, and safety improvements made where required.
6.
Council shall pursue full development of the Apex Trail
along the shoreline of Koojesse Inlet between Lower Iqaluit
and Apex. Special places, such as the valley below Happy
Valley, shall be given special treatment to create a lookout
point.
7.
Council shall consider a cycling plan to identify safe cycling
routes and necessary improvements.
Sidewalks
Cycling Plan
Pedestrian
Walkways
Apex Trail
pedestrian
access
Section 6
Mobility
Iqaluit General Plan By-law No.898
69
6.3
Snowmobile Trails
Snowmobiles are important to residents for access to the land,
the sea ice, recreation and for general transportation in the
winter. Use of the road shoulder by snowmobiles is often in
direct conflict with pedestrians. The preferred routes and driving
surfaces for snowmobiles are therefore independent of the road
network. The network of Snowmobile Trails is shown in Figure C
of this Plan.
Policies:
1.
Snowmobile trails, as identified in Figure C, will be
protected. Should any land be developed in the vicinity of
protected snowmobile trails, the City will ensure that
access for snowmobiles is maintained or that the trail is
rerouted in a satisfactory manner.
2.
The City will initiate a study of snowmobile trails in the Core
Area with detailed information on formal trails connecting
key buildings (e.g. large retail stores, Nakasuk School,
church, etc.) and identifying specific improvements (e.g.
signage, gravel ramps at road crossings, etc.) and their
phasing.
Source: Core Area Secondary Plan, 1998
Snowmobile
crossings
protection of
Snowmobile
Trails
Section 6
Mobility
Iqaluit General Plan By-law No.898
70
3.
Pending the approval of Fisheries and Oceans Canada,
Council will maintain ramps in Lower Iqaluit, Tundra Valley
and Apex as designated in Figure C of this Plan to facilitate
access for snowmobiles to the sea ice.
6.4
Roads
Council has adopted a Road Classification policy to direct future
road works and inform residents about the status of road
facilities. Figure D illustrates the Primary Road Network for
existing and proposed roads. In anticipation of population and
traffic increases, three classifications are listed and described
below: Arterial Roads, Collector Roads and Local Roads.
Not all roads shown will be constructed or improved within a
specified time period or sequence. Council shall, in co-operation
with relevant agencies, formulate a program to establish
priorities for all road works, including rights-of-way, realignments,
traffic controls, training, signage, and street landscaping features
where applicable.
The City will approve development applications only when it is
satisfied that there is sufficient capacity available in the
transportation network to accommodate the proposed
development. A Traffic Study demonstrating adequate capacity
or recommending network improvements may be required, at the
discretion of the Director of Public Works & Engineering, or their
delegate.
6.4.1 Arterial Roads
Arterial Roads act as the main spine roads carrying the largest
volumes of traffic across the City. Block lengths and
West 40 ramp
Section 6
Mobility
Iqaluit General Plan By-law No.898
71
intersections should be spaced and designed to accommodate a
wide variety of transportation modes for the length of Arterial
Roads. Direct vehicular access to properties along Arterial
Roads should be limited, to minimize turning movements and
reduce potential conflicts among travel modes.
Because of the City's underlying topography and historic
northwest-to-southeast development pattern along the
waterfront, the largest volumes of traffic tend to flow along this
same northwest-southeast axis. Over time, Niaqunngusiaq
Road has taken on many of the characteristics of an Arterial
Road; it now connects several neighbourhoods from the Core
Area to Apex.
Rights-of-way for new Arterial Roads should be a minimum of 25
metres, but most of the existing road allowances in the City are
no greater than 20 metres. Arterial Roads should be right-of-way
protected to allow for road widenings over the longer term. The
Arterial Road system is shown in Figure D.
Policies:
1. Arterial Roads and Future Arterial Roads are identified in
Figure D. Other Arterial Roads shall be identified by an
amendment to this Plan.
2. The number of Collector and Local Road junctions with
Arterial Roads should be minimized;
3. Traffic using Arterial Roads shall have precedence over traffic
on Collector and Local Roads;
4. Rights-of-way for Arterial Roads shall be protected for 25
metres.
5. Road widenings, if applicable, shall be obtained at the time of
redevelopment, new development or subdivision of land.
6. Arterial Roads shall be the focus of traffic control
improvements such as traffic lights, controlled-stop
intersections, turning lanes and traffic circles.
7. Pedestrian Walkways shall be built on Arterial Roads in
accordance with the policies in Section 6.2.
8. Arterial Roads shall generally be in accordance with
Illustration 1 - Arterial Road - Typical Cross Section.
25 m ROW
road
widenings
Section 6
Mobility
Iqaluit General Plan By-law No.898
72
Illustration 1
Arterial Road - Typical Cross Section
6.4.2 Collector Roads
Collector Roads are intended to distribute traffic from the interior
of residential communities or industrial and commercial areas to
Arterial Roads, the Core Area and the Airport. Collectors also
allow mobility within residential, commercial and industrial areas
and servicing of abutting properties, although, in some cases, it
may be desirable to restrict access onto Collectors. Rights-of-
way for new Collector Roads should be a minimum of 25 metres,
but most of the existing road allowances in the City are no
greater than 20 metres. Road widenings should be protected for
the Collector system in the longer term. The Collector Road
system is shown in Figure D.
Policies:
1. Collector roads and Future Collector Roads are identified in
Figure D. Other Collector Roads shall be approved as an
amendment to this Plan unless they are part of an approved
Development Scheme.
2. The number of Local and Connector Road junctions should
be minimized;
3. Subdivision design shall discourage traffic from using Local
Roads as a through route.
Section 6
Mobility
Iqaluit General Plan By-law No.898
73
4. Traffic using Collector Roads shall have precedence over
traffic on Local Roads;
5. Rights-of-way for Collector Roads shall be protected for 25
metres.
6. Road widenings, if applicable, shall be obtained at the time of
redevelopment, new development or subdivision of land.
7. Sidewalks shall be built on Collector Roads in accordance
with the policies in Section 6.1.
8. Angled parking located on the Collector Road right-of-way
may be considered where appropriate.
9. Downtown Collector Roads shall generally be in accordance
with Illustration 2 - Downtown Collector Road - Typical Cross
Section.
Illustration 2
Downtown Collector Road - Typical Cross Section
6.4.3 Local Roads
Policies:
1. All City streets other than Collector Roads, as identified in
Figure D, are classified as Local Roads.
2. Careful subdivision design should discourage all through
traffic from using Local Roads. Rights-of-way for new Local
25 m ROW
road widenings
angled parking
25 m ROW
road
widenings
angled
parking
Section 6
Mobility
Iqaluit General Plan By-law No.898
74
Roads will generally be 20 metres, in accordance with the
cross section in Illustration 3.
3. If specified in a Development Scheme, or by resolution of
Council, rights-of-way for new Local Roads may be reduced
to 18 metres.
Illustration 3
Local Road - Typical Cross Section
6.4.4 Bypass Road
Council has long considered the need for a By-pass Road linking
Niaqunngusiaq Road (in the vicinity of Inuksuk High School) to
Federal Road in order to alleviate traffic congestion and truck
traffic at the Four Corners. As an interim solution, the
Transportation and Urban Design Study (2005) and the Iqaluit
Core Area Bypass Road Preliminary Design Report (2007)
suggest reconfiguration of the Niaqunngusiaq Road and Kangiq
& Iniq Drive intersection and a future arterial road alignment
extending Kangiq & Iniq Drive north, with connections to Federal
Road via Masak Court and possibly further north to connect with
Federal Road, as shown in Figure D of this Plan.
Policies:
1. Council shall protect the corridor, consider building a by-pass
road and investigate appropriate financing. The proposed
Alternative 18
m ROW
20 m ROW
Section 6
Mobility
Iqaluit General Plan By-law No.898
75
alignment of this Collector Road is shown in Figure D and
shall be protected from future encroachment.
2. Road widenings to achieve a road right of way of up to 25
metres for the future By-Pass Road, as shown in Figure D,
shall be obtained at the time of redevelopment, new
development or subdivision of land, or when Council
approves funding for the By-Pass Road, whichever comes
first.
6.4.5 Taxi and Transit Service
The City has a well-established and well-used shared taxi
service. The driver picks up multiple passengers, either from
called-in locations or when hailed, and takes them to their
respective destinations, picking up replacement passengers on
the way. There is no fixed route or time schedule. The vehicles
are generally sedans or minivans.
For a short time, the City piloted a transit service, a small bus
that followed established routes. It was discontinued due to low
ridership and high cost of operation. There is strong community
interest in re-introducing a transit service. Given the challenges
in operating a conventional transit system (i.e., established
routes, schedules, stops and shelters along the road) in an arctic
context, building-to-building connections might be more viable;
for example, having taxis in the existing system travel a fixed
route between destinations during designated peak hours.
Given the importance of the existing taxi service and public
desire to re-introduce some level of transit service, it will be
important to ensure proper infrastructure for taxi and transit use.
Policies:
1. The design of any community or institutional use, hotel,
office, retail store and government use building greater than
2,000 m2. in gross floor area will be transit and taxi-friendly,
as follows:
a) Indoor waiting areas with good visibility to the outside
should be incorporated into building design, either as part
of the main entrance lobby, or a separate area
immediately adjacent to the main entrance.
Section 6
Mobility
Iqaluit General Plan By-law No.898
76
b) Logical and convenient pick-up and drop-off areas or pull-
ins adjacent to the road allowance should be incorporated
into site design.
Section 7
Municipal Services & Other Utilities
Iqaluit General Plan By-law No.898
77
SECTION 7
MUNICIPAL SERVICES & OTHER
UTILITIES
The City of Iqaluit provides municipal services, including water
and sanitary sewers (piped or trucked), garbage collection and
disposal, snow removal, fire protection, emergency services and
by-law enforcement. Other utilities, such as Qulliq Energy and
NorthwesTel, provide essential services to City residents and
businesses.
Projected increases in population and housing units will escalate
demands for energy, potable water treatment and supply, and
sewage treatment and disposal. Upgrading and extending
municipal and private infrastructure to support growth will be
costly. Wise planning will ensure the best use of existing
infrastructure, most appropriate and cost-effective technologies
for new infrastructure, and reduction of demand through energy
and water conservation initiatives. The City should also support
alternative energy technology such as wind, solar and hydro
power, and residual heat systems.
7.1
Infrastructure & Climate Change
Infrastructure is at risk because of climate change. Like most
arctic communities, Iqaluit's infrastructure was designed and built
using standards based on past climate data. Climate change
increases the vulnerability of infrastructure exposed to conditions
it was not originally designed to withstand. With projected
increases in climate variability and extreme events, damage to
infrastructure is expected to increase exponentially. Of particular
concern for arctic infrastructure are changes in permafrost, the
frequency and severity of extreme weather events, precipitation,
the coastal environment and ultraviolet radiation levels.
Research and consultation identify a decrease in the permafrost
layer and increased depth of the active layer as the most
significant climate-related concerns for Iqaluit's infrastructure.
Particularly at risk are: buildings with shallow foundation
systems; buildings, roads and buried pipes located on steep
Section 7
Municipal Services & Other Utilities
Iqaluit General Plan By-law No.898
78
south-facing slopes and/or in an area of high snow accumulation;
any building or road in an area of poor drainage where water
may pool; and the landfill and former waste disposal sites.
Coastal infrastructure may be susceptible to damage from
flooding or storm surges.
Policies:
1.
As a condition of Development Permit approval for any new
construction on pile foundations, the City may require the
applicant to submit a post-construction report indicating the
depth of each pile on the site.
2.
All new municipal infrastructures will be designed and
constructed to specifications that include withstanding
projected changes in climate over their expected design life
and meet best sustainability practices.
3.
The design, location and operation of key infrastructure will
integrate climate change considerations, including
permafrost melt, sea level or relative land level rise,
increased temperature, precipitation and extreme weather
events.
4.
The City will explore a possible Climate Change Monitoring
Program that includes partnering with citizen groups, the
development community, community organizations,
research institutes and other levels of government.
Findings of the Monitoring Program should be widely
communicated to build understanding of climate change
impacts and the adaptive capacity of the community. The
Monitoring Program may include the following:
a) Monitoring municipal infrastructure for climate-induced
impacts, with regular reporting to City Council;
b) Identifying and compiling appropriate data sources to
assist in monitoring activities;
c) Studying permafrost stability within the City;
d) Mapping changes in drainage patterns affecting the City;
e) Mapping wind and storm patterns, particularly their
impact on buildings and roads;
f) Mapping the coastal environment for trend changes,
particularly sea level changes.
pile depth
infrastructure to
withstand
climate change
climate change
monitoring
program
Section 7
Municipal Services & Other Utilities
Iqaluit General Plan By-law No.898
79
7.2
Solid Waste Management
The City is responsible for solid waste disposal and the collection and
diversion of waste. The existing Waste Disposal Site is located in the
West 40 area (identified in Figure B). It has exceeded its capacity, and
a new landfill will be identified consistent with the policies of this Plan.
There are also a number of former waste disposal sites in the City
(identified in Figure B).
Policies:
1.
Council must ensure waste disposal capacity sufficient to
accommodate growth, including consideration of recycling
and other waste reduction initiatives.
2.
Council will adopt a Solid Waste Management Plan and
update the Plan as required.
3.
Council will consider waste diversion measures, including
the recycling of construction waste and composting of
organics.
7.2.1 Waste Disposal Sites
Waste Disposal Sites are landfills, incinerators, sewage lagoons
and any other facilities providing long-term storage or destruction
of municipal waste. Recycling and composting depots are
considered waste processing facilities and may be permitted in
conjunction with Waste Disposal Sites.
The City has a sewage treatment plant. The sewage lagoon
remains in service for use during regular maintenance and
upgrades to the sewage treatment plant and in case of a major
failure at the plant.
Policies:
1.
Any waste disposal site must be operated in accordance
with all relevant legislation and any regulations therein
(e.g., water license).
2.
Council proposes establishing a Waste Disposal (WD)
Zone in the Zoning By-law.
3.
Any waste disposal site no longer in use must be
rehabilitated to the standards required by the legislation.
4.
Any proposed development within 450 metres of an
existing or former waste disposal site is subject to the
regulations of the Public Health Act.
operation of a
waste disposal
site
zone category
development
within 450m
rehabilitation
Solid Waste
Management
Plan
Section 7
Municipal Services & Other Utilities
Iqaluit General Plan By-law No.898
80
5.
The establishment of any new waste disposal site will
require an amendment to the General Plan and Zoning By-
law, subject to the following:
a) A study to indicate compliance with Federal or Territorial
legislation;
b) It shall be located an adequate distance from any land
use susceptible to odours, surface water or gas
migration;
c) It shall be set back a reasonable distance from a public
road to minimize unsightly appearance from the road;
d) Consideration of waste diversion initiatives to reduce
and reuse waste materials;
e) A comprehensive public consultation process;
f) Consideration of prevailing winds and snow
accumulation.
6.
Waste processing facilities such as recycling and
composting facilities will be permitted in conjunction with
existing waste disposal sites and are not subject to Policies
4 and 5 in this Section.
7.
Ensure consideration of projected permafrost changes in
designing and developing future landfills.
7.2.2 Former Waste Disposal Sites & Contaminated Sites
Potentially contaminated sites include lands where contaminants
may be present due to previous industrial, transportation, utility,
or other uses. Sources of site contamination can include
disposal of waste materials, raw material storage, residues left in
containers, maintenance activities, and spills. Some commercial
uses, such as gasoline stations and automotive repair garages,
have a similar potential.
It is the intent of this Plan to ensure proper decommissioning and
cleanup of former waste disposal sites prior to their development
or re-use.
Policies:
1.
Council will continue to encourage responsible Federal,
Territorial and other agencies to assist in the cleanup and
restoration of any former waste disposal sites identified in
Figure B of this Plan, or any other known contaminated
new Waste
Disposal Sites
waste
processing
facilities
site
restoration
Section 7
Municipal Services & Other Utilities
Iqaluit General Plan By-law No.898
81
sites. Council will seek suitable end uses for the restored
sites.
2.
Council proposes to establish a Municipal Reserve
Exception 1 - MR (1) Zone to identify former waste
disposal sites in the Zoning By-law.
3.
No development on land formerly used as a waste disposal
site is permitted without a Zoning By-law amendment and
approval from the Department of Health and Social
Services.
4.
Any proposed development within 450 metres of a former
waste disposal site will be subject to the regulations of the
Public Health Act.
5.
An application for development or redevelopment requiring
a development permit, rezoning, consent, subdivision or
amendment to this Plan on lands known to be or suspected
of being contaminated will require a Phase 1 Environmental
Site Assessment (ESA) prepared by a qualified engineer.
If the Phase 1 ESA confirms the presence of
contamination, the proponent must follow all the applicable
regulations.
6.
Council proposes to establish a Municipal Reserve
Exception 3 - MR (3) Zone in the Zoning By-law to allow
location of a leachate retention pond associated with an
existing waste disposal site.
7.3
Water Supply & Wastewater Treatment
City water is supplied by runoff from the watershed to Lake
Geraldine. City wastewater is treated at the recently upgraded
sewage treatment plant located in the West 40. The City will
endeavour to maintain sufficient reserve capacity in its water and
sewer infrastructure to meet servicing needs and to provide
reliability, redundancy and security. The City shall be aware of
and consider the potential impacts of climate change on the
planning and sizing of infrastructure.
Policies:
1.
Council will protect the City's current and future water
supplies by designating Watershed Protection Areas in
accordance with the provisions in Section 4.2.
zone category
development
restriction
Environmental
site assessment
Watershed
Protection
Areas
development
within 450m
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2.
The sewage lagoon is considered a waste disposal site and
is subject to the policies of Section 7.2.1
3.
Sewage treatment facilities must be located an appropriate
distance from any land use susceptible to noise and/or
odours.
4.
Upgrades to the City's water or sewer infrastructure are
subject to relevant studies and must be in compliance with
applicable Federal and Territorial legislation.
5.
The City will approve development applications only when
it is satisfied there is sufficient water and sewage supply,
storage, treatment and piped distribution capacity to
service the proposed development. A servicing Study
demonstrating adequate capacity or recommending system
improvements may be required, at the discretion of the
Director of Public Works & Engineering, or their delegate.
7.4
Water & Sewer Services: Piped vs. Trucked Water
& Wastewater Services
Buildings in Iqaluit are serviced with water and sewage service
by one of two methods: connection to the piped system (utilidor)
or by trucked delivery and hauling. While the City will require
piped services for future development areas, it is recognized that
large areas of the City (i.e. Tundra Valley, Apex the West 40 and
parts of other neighbourhoods) will continue to be serviced by
trucked services for the long term given the significant cost of
extending piped services to these areas.
Policies:
1. Existing piped water and sewer service areas and planned
extensions are shown in Figure E.
2. Council will undertake studies and prepare a funding strategy
for upgrading and extending water and sewer systems to
accommodate development outlined in Section 3 -
Development Strategy.
3. The piped water and sewer system are the preferred system
of servicing for the City and new development will be directed
to areas serviced by utilidor. No new development on
trucked services shall be permitted where full piped services
(water and sewer) are available.
service
upgrades &
extensions
Setbacks for
sewage
facilities
connection to
utilidor
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4. Despite Policy 3, Council will approve limited development in
Apex, Tundra Valley, and on other existing lots of record in
areas where municipal services are not available in an
adjacent road allowance. Development approved by Council
shall be limited to single-detached, semi-detached, duplex
residential developments, and row dwelling units to a
maximum of four units, and to small-scale commercial and
institutional developments where water use does not exceed
2,000 litres per day.
5. Uses that are anticipated to require more than 2,000 litres of
treated water or to generate more than 2,000 litres of
wastewater per day shall not be permitted in trucked or partial
service areas. Such uses must be connected to the utilidor
(piped services).
6. Anticipated water and wastewater usage will be determined
by Staff or, at the request of Staff, by a study prepared by a
qualified professional Civil Engineer.
7. Council will require water conservation methods, such as the
use of low- flow water fixtures, to reduce consumption.
8. As a condition of development approval, Council may require
that holding tanks or water services for fire flow purposes be
installed, subject to review by the Fire Chief.
Site Specific Exceptions:
9. Despite Section 7.4, Policies 4 and 5, the City shall provide
sufficient trucked water and/or wastewater to meet the
operational requirements of approved development on the
following sites, until such time as piped services are
available:
a) Plan 1673, Lot 655 and a portion of Lot 666 (West 40) -
Brewery and Accessory Uses;
b) Plan 2152, Lot 882 (North 40) - Worker's
Accommodation; and
c) Plan 4153, Block 206, Lot 28 (North 40) - Residential
Dwelling Units & Café.
7.5
Other Utility Installations
Policies:
industrial
development
fire flow
development in
trucked or partial
service areas
determining water
use
water
conservation
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1. Other utility installations (building plant, works, tower,
transmitter, relay, receiver, pedestal or other equipment used
to make or deliver a utility product, commodity or service) are
permitted in all land use designations, with the exception of
Aggregate Resources, and subject to the following:
a) such use is necessary in the area and adequate
measures are taken to ensure the use and design is
compatible with its surroundings; particularly in residential
areas or where there are environmental constraints;
b) adequate off-street parking and loading facilities are
provided;
c) utilities requiring buildings or significant structures do not
front on main streets, wherever possible;
d) the proposed infrastructure does not negatively impact
abutting properties; and,
e) the utility or facility meets the intent of other applicable
policies in this plan.
2. Notwithstanding Policy 1 above:
a) installations subject to the requirements of an
environmental assessment are permitted in all
designations;
b) major communication facilities essential to the safe
operation of sea and air navigation will be designated
Transportation Facility; and
c) land for fuel storage facilities or other installations that
generate a detrimental impact, health or safety hazard
or nuisance beyond the boundaries of the lot shall only
be permitted in the Heavy Industrial designation.
3. Where applicable, utility installations must comply with the
regulations of approval authorities, such as the Nunavut
Planning Commission.
4. Council will consider facilitating multi-user access to privately-
owned and City-owned communications towers in order to
minimize the number of towers required.
designations
where
permitted
compliance
with approval
authorities
communications
facilities
exceptions
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SECTION 8
IMPLEMENTATION
8.1
Roles & Responsibilities
The roles and responsibilities of primary participants in the
planning application, submission and review process are outlined
in the following section. They include the Applicant, the
Development Officer, the Planning Committee, Council, and the
Development Appeal Board. Subsections describe the criteria
participants must use in reviewing planning applications and
making a recommendation or decision.
8.1.1 The Applicant
The Applicant shall:
1.
Ensure that the proposed development's design and
construction conform to the National Building and Fire
Code and other applicable codes.
2.
Respect all conditions imposed by a Development Permit
and/or Development Agreement
8.1.2 Development Officer
A Development Officer shall:
1.
Be a professional community planner, preferably a
member of the Canadian Institute of Planners (CIP).
2.
Receive and review all applications for Development
Permits, Zoning By-law Amendments, General Plan
Amendments, Subdivision applications and requests for
variances to the Zoning By-law and determine whether
they are complete.
3.
Make a decision (with or without conditions) on a
Development Permit application where the authority to do
so has been delegated by Council. Council proposes to
establish the classes of development in which the
Development Officer has decision-making authority in the
Zoning By-law.
4.
Make recommendations to Council on planning
applications where the Development Officer does not
have the authority to make a decision or has chosen to
refer a decision to Council.
Applicant
responsibility
Professional
planner
responsibilities
of the
Development
Officer
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5.
Regard the following in reviewing, making
recommendations or making decisions on all planning
applications:
a) Authority under the Planning Act;
b) Community input;
c) The policies, general intent and purpose of this Plan;
d) The provisions, general intent and purpose of the
Zoning By-law;
e) Other guidelines and policies adopted by Council.
6.
Communicate with the Territorial and Federal
Governments and their relevant agencies, the Land
Claims Organization, and the Hunters and Trappers
Organization, as required, regarding development issues,
need for government buildings and resources, and
housing issues.
7.
If the City has no professional planner on staff, Council
shall engage a professional planner to review
Development Permit applications for multi-family
residential (more than 2 units), and commercial and
industrial applications (greater than 1,000m2). These
professional services could also extend to Zoning By-law
and General Plan amendments.
8.1.3 Council
1.
Council shall appoint one or more Development Officers,
of which at least one must be a professional planner
certified by the Canadian Institute of Planners (CIP).
2.
Council may appoint a Planning Committee, which shall
advise Council on planning matters as specified in Section
8.1.4.
3.
Council shall consider Development Officer and Planning
Committee recommendations on all undelegated planning
applications and decide to approve (conditionally or
unconditionally), refuse or refer the application back to the
Development Officer.
4.
Council shall regard the following in making a decision on
all planning applications described in Policy 1:
a) Authority under the Planning Act;
b) Community input;
c) The policies, general intent and purpose of this Plan;
criteria for
Development
Officer
recommendations
or decisions
planning
review by
professional
planner
criteria for
Council making
planning
decisions
appointment of
Development
Officers
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d) The provisions, general intent and purpose of the
Zoning By-law;
e) Other guidelines and policies adopted by Council;
f)
Recommendations submitted by the Development
Officer;
g) Recommendations of the Planning Committee, if
appointed.
8.1.4 Planning Committee
If appointed, the Planning Committee shall:
1.
Play an advisory role to Council;
2.
Review Development Officer recommendations on
referred Development Permit applications, Zoning By-law
Amendments, General Plan Amendments, Subdivision
applications and variances to the Zoning By-law, and
make recommendations to Council on those applications.
3.
Regard the following in making recommendations to
Council on all planning applications described in Policy 2:
a) Authority under the Planning Act;
b) Community input;
c) The policies, general intent and purpose of this Plan;
d) The provisions, general intent and purpose of the
Zoning By-law;
e) Other guidelines and policies adopted by Council;
f)
Recommendations submitted by the Development
Officer.
8.1.5 Development Appeal Board
The Development Appeal Board shall:
1.
Consider appeals to Development Permit, Subdivision
and Variance applications and decisions.
2.
Regard the following in making a decision on appeals:
a) Authority under the Planning Act;
b) Community input;
c) The policies, general intent and purpose of this Plan;
d) The provisions, general intent and purpose of the
Zoning By-law;
e) Other guidelines and policies adopted by Council;
criteria for
Planning
Committee
recommendations
criteria for
Development
Appeal Board
decisions
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f)
Recommendations submitted by the Development
Officer and Planning Committee, if appointed.
8.1.6 Government of Nunavut Building Official
The Government of Nunavut Building Official shall:
1.
Review and issue Building Permits, Demolition Permits
and Occupancy Permits, as required and in accordance
with the Building Code Act.
8.1.7 Procedures Manual
Council may choose to adopt a Procedures Manual to clarify
processing, timelines, roles and responsibilities in planning
applications.
Policies:
1.
Council may adopt a Procedures Manual to guide Council,
Planning Committee, municipal staff and the public in
dealing with planning applications. The manual may be
updated as needed.
2.
The Procedures Manual shall not form a part of this Plan.
8.2
Development Permits
The Planning Act states that Council may adopt a system of
Development Permits to control development and ensure that it
is undertaken in accordance with the policies of this Plan and the
regulations of the Zoning By-law.
Policies:
1.
The Zoning By-law shall establish a system of
Development Permits, along with terms and conditions
under which a permit may be issued, suspended,
reinstated or revoked.
2.
As a condition of a Development Permit, Council may
require that the applicant enter into a Development
Agreement with the City to provide and maintain the
facilities as specified on the approved development permit
plans and to ensure that conditions of development
Development
Agreements
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approval are observed. Such an agreement may be
registered against the land to which it applies, and thus
may be a covenant running with the land.
3.
As a condition of a Plan of Subdivision or Development
Permit, where development involves the construction and
/ or upgrading of municipal infrastructure, such as roads,
water lines, and / or sewage lines, Council shall require
that the applicant enter into a Development Agreement
with the City to provide and maintain, where required, the
infrastructure as specified on the approved plan of
subdivision and / or development permit plans and to
ensure that the conditions of development approval are
observed. Such an agreement may be registered against
the land to which it applies, and thus may be a covenant
running with the land.
8.3
Public Notification
The Planning Act contains statutory requirements for notifying
the public on planning matters; however, in many cases, the Act
requires Public Notification only when a decision has been made
on an application. To increase active and informed participation
by residents affected by land use decisions, Council may
establish additional notification requirements. The following
Public Notification requirements exceed those of the Planning
Act and focus on increasing communication and public input
prior to decision on an application.
Policies:
1.
All planning applications, including Development Permits,
Requests for Variances, General Plan and Zoning By-law
Amendment applications received and under review by
the City shall be publicized as a list, updated bi-weekly,
and posted on permanent City bulletin boards in
prominent locations.
2.
The planning application list shall be bilingual
(Inuktitut/English) and shall include the following
information:
a) type of application;
b) building number or legal description of lot;
c) neighbourhood in which lot is located; and
planning
application list
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d) details on how to obtain further information on any
application.
3.
For Requests for Variances, the Development Officer will
notify any leaseholder of a lot wholly or partially within a
30-metre radius of the lot subject to the application in
writing. The written notice will describe the requested
variance, and must be sent to the leaseholder, and/or
occupant of the lot at least two weeks before the
application is considered by Council.
4.
For General Plan and Zoning By-law Amendment
applications, the Development Officer will notify any
leaseholder of a lot wholly or partially within a 100-metre
radius of the lot subject to the application in writing. The
written notice will include the reasons for requesting the
Amendment(s) and must be received by the leaseholder
at least one week before the application is considered by
Committee and/or Council.
8.4
Development Schemes
Development Schemes provide more detail on development of
specific areas than the General Plan and may be adopted by
Council in accordance with the Planning Act. They show lot
division, intended use, means of service, road layouts and the
phasing of development. Development Schemes are approved
by Council and adopted by by-law. The Development Guidelines
set out in Section 8.6 of this Plan specify design criteria to be
considered in a Development Scheme.
Policies:
1.
Council will adopt Development Schemes by amendment
to the Plan for each Future Development Area (as
identified on Figure B) prior to development, unless
otherwise noted.
2.
The Development Scheme will follow the Development
Guidelines specified in Section 8.6 of this Plan.
3.
The Development Scheme will include a sewer and water
servicing plan and allocate sufficient land for future
municipal services, such as a sewage lift station or a
water booster station.
servicing plan
consistent with
Development
Guidelines
written
notification to
leaseholders
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8.5
Subdivision of Land
Council is required to follow the Planning Act's land subdivision
approval process to control division of community land into
building lots and ensure that all subdivision plans meet the
requirements of this Plan.
Subdivision of land is the key component in land development.
Land development involves surveying lots, designing and
constructing roads and drainage systems, and installing water,
sewer, street lighting, and telephone and power service. The
City is currently responsible for all aspects of land development,
including the financing of projects.
Policies:
1.
Subdivision plans must follow the Development
Guidelines outlined in Section 8.6.
2.
The municipality may require the subdivision applicant to
provide for the installation and construction of all
necessary public roadways, sidewalks, culverts, drainage
ditches, utility systems and other public facilities at his or
her own expense.
3.
The City may consider land development by private
interests, subject to approval by Council. Private land
development is permitted on Inuit-owned land, subject to
approval of a subdivision plan.
8.6
Land Development Guidelines
Land Development Guidelines provide design criteria and
policies to assist applicants or City Staff in preparing
development plans and the Development officer in
recommending plans to Council for adoption. Development
Schemes and subdivision plans may differ, depending on
specific environmental conditions or social needs, but should
conform to the guidelines.
Policies:
1.
Council will apply the Development Guidelines in this Plan
to:
consistent with
Development
Guidelines
subdivision by
private interests
application of
Development
Guidelines
provision of site
works
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a) Subdivision plans undertaken by the City or private
interests;
b) Development Schemes.
2.
In proposing or reviewing a subdivision plan or
Development Scheme, City staff and Council will consider
the following:
a) Identification of an open space network and ways to
connect it to the existing network. Design of the open
space network will consider:
i. Protection of natural features such as prominent
rock bluffs, tundra, and watercourses;
ii. Location of neighbourhood parks and public
buildings and/or services;
iii. Where appropriate, creating connections through
the development area and linking existing open
spaces to the land (Nuna) beyond the Populated
Area.
iv. Provision of safe and convenient access points to
the Walking Trail and Snowmobile Trail systems,
as designated in Figure D.
v. Where appropriate, identification of new
connections to the Walking Trail and Snowmobile
Trail systems, protected by designating the subject
lands Open Space.
b) The size and location of neighbourhood parks are
subject to the policies contained in Section 5.7.
c) All public spaces should be designed to ensure
personal security by preserving unobstructed sight
lines for persons passing through, and visibility of
such spaces to people in adjacent buildings or other
public spaces.
d) Creating a mix of uses along Collector Roads to
increase activity and personal security for
pedestrians.
e) Consultation with the community and various levels of
government to determine the need for new community
or public land. Public uses should occupy prominent
locations with good access and good visibility from
the surrounding neighbourhood or proposed
neighbourhood.
Considerations
for a
Development
Scheme
community
consultation
mix of land uses
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f)
New land for municipal servicing infrastructure, such
as a sewage lift station, water booster station or
reheat stations.
g) For the residential component of Development
Schemes:
i. target an average net residential density of 30
units per net hectare. Net residential density is
based on the area in exclusively residential use,
and excludes public streets, rights-of-way and all
non-residential uses;
ii. ensure that no more than 40% of the leasable lot
area is dedicated to low density residential
development;
iii. target 7% of the leasable lot area to be affordable
to households under the 50th income percentile.
The target income percentile may be amended by
resolution of Council;
iv. consider the location of low-density residential
areas relative to medium and high-density
residential areas;
v. target at least 5% of housing proposed in a
Development Scheme, excluding apartment
dwellings, to meet the requirements of an industry-
standard energy efficiency rating program, either:
− R-2000; or
− EnerGuide Rating Services (minimum
rating 80).
h) Respect watercourse setback requirements as
established in Sections 5.6.8 and 5.6.9.
i)
Provide Arterial, Collector and Local Roads in
accordance with the policies in Section 6.4 and a
hierarchy of roads that connects to the existing road
network.
j)
The configuration and orientation of lots should
respond to the local microclimate and physical site
conditions by considering:
i. Existing drainage patterns;
ii. Sun exposure to maximize sunlight on residential
buildings;
iii. Steep slopes;
iv. Prominent views;
v. Direction of prevailing winds;
configuration
and orientation
of lots
road
classifications
density,
affordability and
energy efficiency
targets
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vi. Known or potential snow-drifting areas identified
through a snow and wind study.
k) The presence of known historical or cultural
resources, subject to the policies established in
Section 5.8.
l)
Where transit service is proposed, provide safe and
convenient access to bus stops or waiting areas and
ensure that they are appropriately sheltered.
m) The feasibility and cost of installing power cables and
infrastructure underground.
8.7
Lot Development Standards
Lot Development Standards apply generally to all development
parcels but may vary according to the proposed use. They are
intended to encourage attractive and sustainable
neighbourhoods.
Policies:
1.
All new development must have frontage on a public road.
Exceptions to this policy may be unsurveyed Crown
Lands, existing lots without frontage, public parks and/or
public utilities.
2.
The use of gravel fill should be minimized to the extent
possible on all lots. Any area on the lot not used for
vehicular parking, parking access, loading areas,
accessory buildings or gravel pads for block foundations
must not be filled and shall be retained as natural tundra.
Applications for development permits will identify where fill
will be introduced, as well as areas that will be retained or
restored as tundra.
3.
All buildings shall use water saving devices that meet the
following specifications:
a) Toilets - water saver or ultra-low flush using 6 litres
per flush or less.
b) Showerheads - low-flow using 9.8 litres per minute or
less at 551 kPa.
c) Washroom and kitchen faucets - 8.3 litres per minute
or less at 413 kPa.
4.
Building design allows wind-flow underneath the building
to prevent snow drifting against building faces (i.e., no
solid skirting or enclosed storage below buildings). The
water
conservation
gravel fill
road frontage
wind flow
underneath
buildings
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Development Officer may grant exceptions if the
applicant can demonstrate that downwind effects are
minimized by site layout and building design, where slab
on grade construction is used, or where site topography
creates hardship in achieving this standard.
5.
Snow and wind impacts associated with a development
shall not have a negative impact on pedestrians,
surrounding properties or the proper functioning of the
site. A Snow and Wind Study many be required for
developments greater than 1,000 m2 GFA or at the
discretion of the Development Officer.
6.
Safety and security measures have been considered in
site design,. Including:
a) Sufficient lighting in spaces intended for public use;
b) Preservation of sight lines, where appropriate;
c) Identifying pedestrian access routes;
d) Avoiding the creation of enclosed areas invisible from
within the building or from adjacent public spaces.
e) Non-residential development greater than 3,000 m2
GFA is encouraged to complete a CPTED analysis
(see Section 2.2.5).
7.
On residential lots, passive solar heating of living spaces
will be encouraged by requiring that the building façade
with the most window area be south facing ± 30 degrees,
where feasible.
8.
Every ground floor unit in a medium density or cluster
residential zone will have an enclosed storage area on the
lot, which may be attached to the principal dwelling (but
must be accessible from the outside) or in an accessory
building.
9.
Shared driveways and building services (e.g., garbage
storage and oil delivery areas) shall be incorporated into
site layout for residential lots containing 2 or more units,
where feasible. Adjoining residential uses will be
encouraged to share driveways and building service
areas.
10.
Applications for development permits for buildings
containing 6 or more residential units or exceeding 500 m2
GFA will identify snow-piling areas on the lot. Lots
adjacent to Open Space will require landscaping works to
prevent snow dumping on the Open Space.
safety and
security
passive solar
heating
storage
shared
driveways and
building
snow piling
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11.
Applications for development permits for buildings
exceeding 500 m2 GFA will include at least one
accessible route (minimum 1 metre wide) within the site
boundary linking parking, pick-up and drop-off areas, and
pedestrian walkways to the accessible building entrance
they serve. The accessible route will, as much as
possible, coincide with the route for the general public.
12.
During demolition, renovation or construction of any
building, the applicant must ensure that a construction
waste bin for debris from the site is available on the lot.
13.
During new construction of a building greater than 2,000
m2 GFA, the site must be fenced to restrict general access
and contain debris.
14.
Council will encourage building owners to retrofit existing
buildings with energy efficient and alternative upgrades
through education programs and/or financial aid.
15.
Council shall pursue funding from agencies such as
Federation of Canadian Municipalities (FCM), Natural
Resources Canada (NRC), and the Canada Mortgage and
Housing Corporation (CMHC) to implement sustainable,
energy-efficient, or alternative energy technologies in
building design and urban form. This funding could be
used for demonstration or pilot projects, research projects,
or to subsidize innovative development projects.
16.
Any exterior lighting installed on a lot or attached to a
building will face downward and will not illuminate beyond
the boundary of the lot.
8.8
Zoning By-law
Zoning is the principal means for implementing a General Plan.
As set out in Sections 13 to 18 of the Planning Act, the Zoning
By-law will regulate the use of land, erection and use of buildings
and structures, yard requirements, parking and loading space
requirements, and similar matters.
A revised Zoning By-law has been prepared and will be adopted
concurrently with the General Plan. The Zoning By-law will be
the tool to implement many of the policies of this Plan. All new
development must conform to the intent of this Plan and the
Zoning By-law.
accessibility
for disabled
persons
demolition
waste
funding from
other partners
buildings
energy
efficiency
retrofits
exterior
lighting
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Policy:
1.
The Zoning By-law and any amendments thereto shall
conform to this Plan.
8.9
Variances to the Zoning By-law
Variances allow an applicant to develop land in a way that does
not comply exactly with the Zoning By-law. They are usually
necessitated by circumstances peculiar to the property. A
variance may not alter the existing use of the land in a way that
would normally require a change in zoning; it must be considered
a minor change to the Zoning By-law. Since requested
variances may be "minor" in some situations and "major" in
others, each case must be evaluated by the Development Officer
as to whether a variance or a zoning by-law amendment will be
required. This section lists criteria Council will use in deciding on
a request for a variance.
Policy:
1.
In deciding on a request for a variance to the Zoning By-
law, Council shall consider the following:
a) The policies, general intent and purpose of this Plan;
b) The provisions, general intent and purpose of the
Zoning By-law;
c) The variance does not alter the use of the land in a
way that would normally require a change in zoning;
d) The request for variance constitutes a minor departure
from the Zoning By-law.
e) Site constraints or restrictions that create physical
hardship in meeting the requirements of the Zoning
By-law;
f) The concerns of or impact on adjacent owners,
residents, and community have been addressed; and,
g) Approval of the variance would not create an
undesirable precedent.
8.10 Other By-laws
By-laws passed by Council under the authority of the Cities,
Towns and Villages Act or any other Act may implement some of
criteria for
Council making
decisions on
variances
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Implementation
Iqaluit General Plan By-law No.898
98
the policies of this Plan. Any such by-law or amendments
thereto, must conform to the policies of this Plan.
8.10.1 Development Charges By-law
1.
Council may pass a Development Charges By-law to
collect funds for all off-site infrastructure and servicing
including, but not limited to, water, sewer and solid waste
management upgrades, road building or improvements,
walking and snowmobile trail development, and the
creation and upgrading of parks and playgrounds and
other such public amenities.
8.10.2 Property Maintenance By-law
1.
Council may enact a Property Maintenance By-law
prescribing standards for the maintenance of buildings
and property for the entire City.
2.
The Property Maintenance By-law may address the
following:
a) Prescribed standards for the maintenance of property,
including the physical condition of yards and the
condition of buildings and structures, including sea
containers.
b) Provisions that require substandard properties be
repaired and maintained to comply with the prescribed
standards, prohibit the use of substandard property and
require the demolition and clearing of such property
where the owner does not intend to maintain it.
c) Measures including education and public relations
programs to demonstrate the benefits of ongoing
property maintenance and show that improvements can
often be made without increasing tax assessment.
d) Requirements that all municipally owned buildings and
properties be well maintained.
8.10.3 Land Administration By-law
The City of Iqaluit owns and is responsible for the administration,
including long-term leasing, of municipal lands which comprise
the majority of lands within the municipal boundary. Policy:
contents of a
Property
Maintenance
By-law
Section 8
Implementation
Iqaluit General Plan By-law No.898
99
1.
In negotiating leases pursuant to the Land Administration
By-law, the City shall regard the policies of this Plan.
8.11 Public Works
Certain policies of this Plan will be implemented through the
construction of public works.
Policy:
1.
Council shall not undertake any public works that do not
conform to the intent and policies of this Plan.
8.12 Plan Maintenance
8.12.1 Plan Amendments
Amendments may be made to the Plan as warranted. The
provisions of the Planning Act with respect to General Plans
apply also to amendments, including the approval of the Minister.
Policy:
1.
When amendments are made to this Plan, By-laws will
also be amended to ensure conformity with this Plan.
8.12.2 Plan Review Procedure
Council intends that a comprehensive review of this Plan take
place at least every five years, as required by the Planning Act.
However, if any of the assumptions on which this Plan is based
change substantially, a partial or complete review of the Plan
may be undertaken to determine whether its policies are still
appropriate.
Policies:
1.
Council shall undertake a comprehensive review of this
Plan at least every five years or sooner if the assumptions
of the Plan are deemed to have changed substantially.
consistency
between General
Plan and By-laws
five-year review
of General Plan
Section 8
Implementation
Iqaluit General Plan By-law No.898
100
2.
Council shall undertake a Plan review in consultation with
the Government of Nunavut and other government levels
and agencies.
consultation with
GN and other
government
agencies
Section 9
Interpretation
Iqaluit General Plan By-law No.898
101
SECTION 9
INTERPRETATION
Policies:
1.
It is intended that the boundaries of any land use areas
shown in Figures A and B be considered approximate only,
except where bounded by such features as existing roads,
rivers or other natural landmarks. It will not be necessary
to amend the General Plan for minor variations in the
approximate boundaries, provided that the intent of the
Plan is preserved.
2.
It is intended that all figures and quantities contained in the
Plan be considered approximate only. Amendments will
not be required for any reasonable variation from these
figures, with the exception of the servicing-related policies
in Sections 7.3 and 7.4
3.
It is intended that buildings, structures and uses that are
normally incidental, accessory and essential to a permitted
use will also be allowed if deemed appropriate, even if not
specified in the land use policies.
4.
Any significant change from the policies contained herein
will require an amendment to the General Plan and
implementing By-law. If a change is major, particularly if it
will alter the way the City is developing, then the entire
General Plan should be reviewed.
5.
Amendments to the General Plan will not be necessary for
administrative or technical changes, such as correction of
typographic errors, spelling, grammar or numbering,
changing references to legislation, or for office
consolidations of the Plan.
6.
Where reference is made to consultation with or approval
from the Territorial or Federal Governments, it includes any
delegated authority. Amendments to the General Plan will
not be required to cite any such delegated authority in the
Plan. Similarly, if the responsibilities or names of Territorial
departments, Federal ministries or other public bodies
change, any references to them may be correspondingly
changed in the Plan without an amendment.
Section 9
Interpretation
Iqaluit General Plan By-law No.898
102
7.
Sections 1 to 9, Figures A to E, and all Annexes constitute
the General Plan. All other contents are provided for
information only and are not a part of this Plan.
Appendix A - Development Potential
Development
Area
Area (ha)
Commercial /
Institutional
(ha)
Residential
(ha)
Potential
Housing Units
Plateau
Subdivision
240 - 280
A
22.4
7.7
14.7
440 - 515
B
21.8
6.5
15.3
460 - 535
C
3.3
3.3
0
0
Federal Road
IOL
7.2
3.6
3.6
300 - 400
Infill / Core
Area
Redevelopment
7.1
2.9
4.2
250 - 300
TOTAL
61.8
24.0
37.8
1,690 - 2,030
Figure A - General Land Use
Figure B - Populated Area Land Use
Figure C - Walking and Snowmobile
Trails
Figure D - Primary Road Network
Figure E - Piped Municipal Services
ANNEX A - PLATEAU DEVELOPMENT
SCHEME
\
A Sustainable Arctic Subdivision
October 2004
Planning & Lands Department
City of Iqaluit
Nunavut
SLB Consulting
FoTenn Consultants
Marbek
Plateau Development Scheme
Plateau Development Scheme
City of Iqaluit
October 2004
page i
CONTRIBUTORS
Funding Agencies
The City of Iqaluit would like to thank the funding agencies - Federation of Canadian
Municipalities and the Canada Mortgage and Housing Corporation - for their invaluable
support for their project.
Design Workshop Participants
The City of Iqaluit and the project consulting team would like to thank the following
individuals, organizations and governmental agencies for their contribution to this project.
Federal departments/agencies /organizations
Grant Morrison
Canada Mortgage and Housing Corporation
Sandra Marshal
Canada Mortgage and Housing Corporation
Chris Ives
Canada Mortgage and Housing Corporation
Bill Semple
Canada Mortgage and Housing Corporation
Doug Pollard
Federation of Canadian Municipalities
John Purkis
Federation of Canadian Municipalities
Mary Anne Strong
Natural Resources Canada
Conrad Baumgartner Natural Resources Canada
John VandeKleut
Natural Resources Canada
Ronald Alward
Natural Resources Canada
Josef Ayoub
Natural Resources Canada
Alex Taylor
Public Works and Government Services Canada
Territorial/Municipal departments/agencies
Jeanie Eseemailee
City of Iqaluit
Geoff Baker
City of Iqaluit
Rebecca Jerram
GN Department of Community and Government Services
Doug Sitland
GN Department of Community and Government Services
Peter Scott
Nunavut Housing Corporation
Lee Douglas
Nunavut Power Corporation
Jamal Shirley
Nunavut Research Institute
Jeff Wood
Nunavut Research Institute
Development community & Other organizations
Jim Little
Canada-Nunavut Geoscience Office
Michael Barton
Energy Solutions Centre
Robert Billard
Ferguson, Simek Clark
Keith Irving
Full Circle Architecture
Paul Mulak
Habitat for Humanity
Sheila Watt-Cloutier
Inuit Circumpolar Conference
Susan Spring
Iqaluit Housing Authority
Cathleen Knotsch
Inuit Tapiriit Kanatami
Stephane Gelinas
Kudlik Construction
John Laird
Laird & Associates
Glenda Zuker
Northern Properties Real Estate Investment Trust
Plateau Development Scheme
City of Iqaluit
Steve Cook
Nunastar Properties
Kim Makela
Trow Associates Inc.
Megan Torza
University of Toronto
Steve Sopinka
University of Toronto
Project Team
The project team consisted of the following individuals:
Michèle Bertol
City of Iqaluit
Steve Burden
SLB Consulting
Pamela Sweet
FoTenn Consultants Inc.
Michelle Armstrong
FoTenn Consultants Inc.
Christopher Straka
FoTenn Consultants Inc.
David Shipley
Marbek
Chrystal Fuller
CF Consulting
Debbie Nielsen
Environmental Management Services
Bill Waechter
RWDI
Plateau Development Scheme
City of Iqaluit
October 2004
page iii
TABLE OF CONTENTS
INTRODUCTION .................................................................................... 1
BACKGROUND ...................................................................................... 1
POLICY FRAMEWORK .......................................................................... 1
DEVELOPMENT PRINCIPLES & EVALUATION CRITERIA .................. 2
DEVELOPMENT POLICIES ................................................................... 7
GEOMAGNETIC LABORATORIES ................................................................................................................ 7
PHASING OF DEVELOPMENT ...................................................................................................................... 7
DEVELOPMENT STANDARDS ...................................................................................................................... 7
LAND USES ................................................................................................................................................. 13
AFFORDABLE HOUSING ............................................................................................................................ 14
WATERCOURSE SETBACKS & DRAINAGE ............................................................................................... 15
WALKING TRAILS ........................................................................................................................................ 15
SNOWMOBILE TRAILS ................................................................................................................................ 16
TRANSIT ...................................................................................................................................................... 16
ROADS ......................................................................................................................................................... 16
SERVICING .................................................................................................................................................. 17
DEVELOPMENT DEMONSTRATION .................................................. 18
IMPLEMENTATION .............................................................................. 22
PLANNING & LANDS ADMINISTRATION .................................................................................................... 22
PARTNERSHIPS .......................................................................................................................................... 23
AMENDMENTS TO GENERAL PLAN & ZONING BY-LAW ......................................................................... 24
FURTHER STUDIES .................................................................................................................................... 25
MONITORING .............................................................................................................................................. 25
APPENDIX A - DEVELOPMENT CONCEPT PLAN ............................. 26
APPENDIX B - SERVICING PLAN ...................................................... 27
APPENDIX C - ROAD, TRAIL AND TRANSIT NETWORK PLAN ........ 28
APPENDIX D - UPPER PLATEAU PHASE 1 SUBDIVISION PLAN ..... 29
Plateau Development Scheme
City of Iqaluit
October 2004
page 1
INTRODUCTION
The City of Iqaluit wishes to increase the supply of land for development in the City and to apply
sustainable development practices to this new development. A Development Scheme has been
prepared for the development of the area known as The Plateau. The Plateau is an area
identified as Future Development Area A in the General Plan (GP). The Plateau Development
Scheme was approved by Council October 26th, 2004.
A Development Scheme is provided for in the Planning Act and is required by the GP for all
Future Development Areas. This Development Scheme contains the following:
Policy Framework
Development Principles & Evaluation Criteria
Development Concept Plan
Servicing Plan
Development and Servicing Policies
Development Demonstration
Implementation
The Development Concept Plan is attached as Appendix A and describes land uses,
environmental protection areas, open space areas, watercourse setbacks, road and trail
networks, and phasing of development. The Servicing Plan is attached as Appendix B and
describes the water and sewer servicing and connection points. Road, Trail and Transit Network
Plan are highlighted in Appendix C. Once approved, all new development must conform to the
Development Scheme.
BACKGROUND
To address the growing demand for residential lots and to recognize the need for sustainable
development practices, the City hosted a design charrette in May 2004 to explore different
alternatives and ideas for development of the Plateau area. A Background Report (June 2004)
was prepared by the consultant group (SLB Consulting, FoTenn Consultants, Marbek, RWDI, CF
Consulting & Planning, and Debbie Nielson Environmental Management Services) to serve as
an information base for the design charrette participants and the for the project in general.
Two concepts were prepared and circulated to charrette participants, other key stakeholders,
and the consulting team. Taking into account the feedback received on the two concept plans, a
preferred Development Concept Plan was prepared along with development policies and
recommendations to implement the Plan.
POLICY FRAMEWORK
Future Development Areas are designated on Figure B of the General Plan. A detail of Figure B
is shown on the map below (Future Development Area A is shown in orange). These areas
reserve land for housing, services, and employment opportunities for the future. Future
Development Areas may only be developed by amendment to the General Plan, subject to the
Plateau Development Scheme
City of Iqaluit
justification of need for additional land for development and the adoption of a Development
Scheme in accordance with the Development Guidelines in the General Plan (Section 8.6).
A Housing Needs Assessment was completed in June 2004 as part of the Background Report
for this project. The Assessment noted that the supply of remaining vacant lots and infill lots in
the City will be fully developed by the end of the 2005 construction season. Since September
2002, over 80% of all units built, approved, or pending approval for construction are apartment
units, primarily in Core Area redevelopment and residential intensification projects. The
Assessment concluded therefore that new land is required to supply a greater amount of ground-
oriented type housing, such as singles, semi-detached, duplex, row dwellings, and stacked row
dwellings.
Section 8.6 of the General Plan contains Development Guidelines that provide design criteria
and policies that must be considered in the preparation of Development Schemes. The
proposed Development Concept Plan for The Plateau (Area A) responds to these guidelines.
Detail of Figure B of the General Plan No.571
DEVELOPMENT PRINCIPLES & EVALUATION CRITERIA
The City is applying sustainable development practices to the way Area A will be developed.
Sustainable development integrates cultural, economic and social factors into environmental
issues. Sustainable practices must therefore reflect the vision and resources of the community
and consider factors such as climate, occupant use, and economics.
The development principles and evaluation criteria adopted for this project were used to guide
and test the preparation of the Development Concept Plan. Table 1 evaluates how the Plan
responds to the 14 Development Principles:
Plateau Development Scheme
City of Iqaluit
October 2004
page 3
Table 1: Performance of Development Concept Plan with respect to Development Principles
Development Principle
Evaluation Criteria
Development Concept Plan
Land Uses
1
Provide additional housing to meet the
needs of a growing population.
2
Provide a choice of dwelling types to
reflect Iqaluit's cultural diversity and
socio-economic composition.
3
Provide and seek opportunities for
uses other than residential to be
accommodated.
Target a build-out development potential of
approximately 250 to 300 dwelling units.
Target 75% of the units to be ground-oriented
(private entry access).
Target 15% of the units (ground-oriented) to be
reserved for lower-income groups.
% of units with views to the sea.
Target a minimum of 10% of developable lot
area for uses other than residential, such as
commercial or institutional uses.
Development Potential is estimated at 300
units.
87% of units are ground-oriented.
Development Policies to support
Affordable Housing are proposed and
targeted at 15% of ground-oriented units,
or approximately 40 units.
38% of lot area offer unobstructed views
to the sea.
18% of developable lot area is reserved
for non-residential uses.
Environment
4
Protect significant environmental
features both on and off site.
5
Design to respond to the local micro-
climate and physical site conditions.
Degree of protection of known or recorded
environmental features.
% of linear roads laid out in the direction of
prevailing winds.
% of lots oriented for maximum solar exposure.
Length of road where slopes greater than 10%.
Berry-picking area, three significant rock
outcroppings and the lake are fully
preserved and protected.
75% of road length is oriented NW to SE.
41% of lot area is aligned directly N to S
and the majority of remaining lots are
oriented within 45 degrees of the N to S
axis.
Less than 300m of road exceeds a 10%
slope, representing less than 9% of total
Plateau Development Scheme
City of Iqaluit
October 2004
page 4
Development Principle
Evaluation Criteria
Development Concept Plan
6
Reduce Greenhouse Gas emissions by
reducing per capita consumption
levels of key resources (water, diesel
fuel, heating oil, gasoline)
7
Reduce generation of wastes
(wastewater, solid waste, construction
waste)
Target a 20% reduction in Greenhouse Gas
emissions relative to emissions in other
neighbourhoods in Iqaluit.
Target an overall 20% reduction in
consumption level of key resources relative to
current average consumption rates in the
Iqaluit.
Target a 20% reduction in the generation of
wastes.
road length.
Subdivision design and development
policies that require a basic 'Lot
Development Standard' for all buildings
will achieve a 20% reduction in GHG
emissions and a 20% reduction in water
consumption.
Wastewater will be reduced by reducing
water use. Further strategies for reducing
construction waste could be explored.
Movement
8
Ensure safe movement systems within
the neighbourhood.
9
Integrate neighbourhood movement
systems with community-wide network
to provide convenient access to key
community destinations, the
beachfront, and the land.
Degree of intermodal conflict mitigation
measures.
Degree of accessibility to and overall efficiency
of the Walking Trail network from all buildings
in the development.
Degree of accessibility to and overall efficiency
of the Snowmobile Trail network from all
buildings in the development.
Degree of accessibility to and overall efficiency
of the existing road network from all buildings
in the development.
Clearly defined separate routes for
snowmobiles, pedestrians and vehicles
will result in low conflict. Cluster housing
opportunities will help to centralize
building services.
98% of lots adjoin either a Walking Trail or
an Open Space area.
No lot within the neighbourhood is further
than 200m from a designated Snowmobile
Trail.
The road network provides alternate
routes for emergency access and
provides road access to all lots in the
development.
Plateau Development Scheme
City of Iqaluit
October 2004
page 5
Development Principle
Evaluation Criteria
Development Concept Plan
Neighbourhood Identity
10
Ensure a sense of identity in the
neighbourhood while being socially
integrated into the community as a
whole.
11
Provide recreational opportunities for
residents.
Number of unique features/focal
points/characteristic elements in the
neighbourhood.
Meet or exceed General Plan target of 100m2
of playground space per 30 to 50 households,
with maximum 300 metre walking distance.
Number of other opportunities for recreation.
6 features have been identified as
significant features, 4 of which are natural
features (lake and 3 rock outcroppings)
and two community focal points (a public
square and picnic area).
There are three playground spaces
identified (Phase 1 - 290m2, Phase 2 -
4524m2, Phase 3 - 330m2) for a total of
5,054m2, with a maximum 300-metre
walking distance from each lot.
Snowmobile and Walking Trails are
provided throughout the subdivision.
A majority of the land is designated Open
Space providing informal or passive
recreational opportunities.
Economic
12
Provide a flexible, feasible and phased
development concept that can spread
sustainability improvements over the
build-out period in order to reduce
financial risk to City as the prime
developer.
Degree of phasing opportunities represented
by the concept plan.
Degree of financial risk to the City represented
by the concept plan.
Ease of implementation of the Concept Plan as
measured by the potential obstacles to
implementation.
Upper Plateau and Lower Plateau
development areas are phased separately
providing 5 phases of development.
The phasing of development and
enhanced development requirements to
support sustainability objectives are
increasingly phased in over time to reduce
financial risk to the City (20%, 33%, and
58% of residential lot area for Phase 1, 2,
and 3 respectively).
There are few major obstacles to
development except for the requirement
Plateau Development Scheme
City of Iqaluit
October 2004
page 6
Development Principle
Evaluation Criteria
Development Concept Plan
13
For all infrastructure (eg. roads, water,
sewer, power) decisions examine life
cycle costing to operate the system for
the expected lifetime.
14
City to develop industry/expertise in
cold climate sustainable techniques.
Degree to which total life cycle costs (initial
purchase, transportation, installation,
operation, maintenance) are reduced.
Linear length of developable frontage in
relation to linear length of infrastructure.
Extent to which existing knowledge and
expertise is applied. Improved, promoted and
marketed.
for relocation of the geomagnetic
laboratories and land issues with Arctic
College regarding Lower Plateau.
Infrastructure decisions have focused to a
greater degree on life-cycle costing than
conventional subdivision design in Iqaluit
with the intent of reducing operating and
maintenance costs to the City and future
residents.
For each linear metre of developable
frontage, approximately 0.9 metres of
linear infrastructure is required.
The Plan supports the development of
local expertise and knowledge. This will
need to be monitored to understand and
measure the long-term positive impacts.
Plateau Development Scheme
City of Iqaluit
October 2004
page 7
DEVELOPMENT POLICIES
The following development policies will apply to the lands identified on the Development
Concept Plan in Appendix A, the Servicing Plan in Appendix B, and the Road, Trails, and
Transit Networks Plan in Appendix C.
Geomagnetic Laboratories
Natural Resources Canada currently operates two
geomagnetic laboratories in the proposed development
area, approximately 250m northwest of Arctic College.
These laboratories require a minimum development buffer
of 100m and direct line of sight with the Government of
Canada building. The City is working in collaboration with
NRCan to relocate these facilities. A new location has been
confirmed and the facilities will be relocated prior to
development of the subdivision. This Development Scheme
assumes their satisfactory relocation so that their buffer
requirements do not impact the development of this site.
Phasing of Development
The preferred Development Concept Plan provides the opportunity for approximately 300
housing units over all development phases. Approximately 260 of the housing units, or 87% of
the total, are ground-oriented which provides private entry access to each unit. Two distinct
development areas are identified on the Development Concept Plan - Upper Plateau and Lower
Plateau - as shown on Appendix A. The Upper Plateau and Lower Plateau may be serviced
separately and therefore the timing of development for each will be according to the City's
needs.
The Upper Plateau is divided into three phases. The anticipated number of units for each of
these phases reflect the General Plan targets for average annual supply of housing units
needed to meet the City's 2022 population projection.
The Lower Plateau delivers a smaller developable area, however, has been divided into two
phases given the uncertainty regarding the feasible development of Phase 2. Given the cost of
lot development in this area, the development of Phase 2 would likely only proceed as part of a
road infrastructure project in which it was determined that it is desirable to establish a road
connection between Federal Road and the Upper Plateau development. The phasing therefore
permits Phase 1 to be developed as a cul-de-sac independent of Phase 2 and a road
connection to Federal Road.
Development Standards
Basic lot development standards are proposed for all development on the Upper and Lower
Plateau. In addition, a number of lots on the Development Concept Plan (Appendix A) have
been identified with an overlay which indicates 'Enhanced Development Requirements'. These
Plateau Development Scheme
City of Iqaluit
October 2004
page 8
lots will need to achieve higher development standards than the other lots. The number of lots
identified with enhanced requirements increases through the various phases of development,
reflecting the anticipated increase in local builder capacity and expertise to achieve higher
standards of development.
Table 2 outlines the basic development standards that will apply to all development on the
Plateau - the 'Plateau Lot Development Standard'. This includes site layout considerations,
building design, and building systems. A discussion of the proposed building system standards
is described below. Table 3 provides a summary of the standard and enhanced requirements
for various designations through each phase of development. A description of the standards
referred to in this table - R-2000, MNECB, and LEED - are all described below.
It should be noted that the City will review all development standards on Enhanced
Development Requirement lots as phasing of development proceeds. Targets will be revised
and set prior to development of each additional phase to reflect the availability of technologies
and local expertise.
Building Systems Standard
There are a number of prescriptive measures described in the Plateau Lot Development
Standard to reduce energy and water consumption.
ENERGY STAR ® qualified windows: Windows can be a significant source of heat
loss in a home or building. ENERGY STAR qualified windows will save money by
reducing overall energy costs. They will also help keep the home or building more
comfortable year-round, reduce outside noise and may have a lot less condensation in
cold weather compared with a conventional product. These windows qualified by the
Natural Resources Canada EnerGuide program. EnerGuide is the official Government of
Canada mark associated with the labelling and rating of the energy consumption or
energy efficiency of household appliances, heating and ventilation equipment, air
conditioners, houses and vehicles.
Water saving devices: Plumbing fixtures are required to meet the specific criteria
outlined for toilet, showerhead, and faucet fixtures. This standard it intended to reduce
the amount of water consumed on a daily basis in the building. The values chosen
reflect both desired performance and market availability and are based on the R-2000
standard.
Oil-fired water heaters: Oil-fired water heaters are specifically targeted over electric
water heaters since fuel burned in the home is far more efficient than fuel burned at the
diesel generating station and then transmitted to the home.
Heat Recovery Ventilators (HRV): An HRV, air-to-air heat exchanger, is a
mechanical ventilation device that helps make a home healthier, cleaner and more
comfortable by continuously replacing stale indoor air with fresh outdoor air. HRVs are
set apart from other mechanical ventilation devices by their ability to exchange heat
between the supply and exhaust air streams, which in turn reduces the cost of heating
or cooling the healthy fresh air that circulates through the home.
R-2000 Standard
The R-2000 energy standard, defined by Natural Resources Canada, is used as both a
guideline and a required development standard throughout the various development phases. R-
2000 is a prescriptive standard that specifies a set of construction measures that must be
included in a home in order for it to qualify. Technical requirements of the R-2000 Standard
Plateau Development Scheme
City of Iqaluit
October 2004
page 9
include measures for the efficient use of energy, improved indoor air quality and better
environmental responsibility in the construction and operation of a house. The R-2000 Standard
is not a substitute for the National Building Code or any other applicable building codes. Only
licensed R-2000 builders can construct R-2000 certified homes. R-2000 trained builders are
required to register, build and certify an R-2000 Demonstration Home before they can become
licensed. The R-2000 standard is subject to revision and it is intended that updates to the R-
2000 standard will be reviewed and adopted through the phases of development.
Model National Energy Code for Buildings (MNECB)
All Mixed-Use lots are required to meet the Model National Energy Code for Buildings
(MNECB), which is a well-established standard for basic energy performance in buildings.
This standard establishes minimum standards of construction for building components and
features that affect energy performance. Specific requirements vary by building type (or
purpose) and by region of the country. MNECB is designed to work well with the National
Building Code. Programs to encourage greater energy efficiency in Canada's commercial
buildings often take the MNECB as their basis. The Commercial Building Incentive Program
(CBIP), for example, requires a building designer to show that a building will consume at
least 25% less energy than a similar building constructed according to the MNECB.
Experience has shown that this level of energy performance is readily attainable using well-
established design techniques, and that the resulting improvements are financially attractive.
Leadership in Energy and Environmental Design (LEED®)
All Community Use and Core Area Use lots are required to achieve the Leadership in Energy
and Environmental Design (LEED ®) certification. In addition to energy efficiency, LEED
takes into account siting issues, water use efficiency, materials and resources used in
construction, and indoor environmental quality. LEED awards points for meeting specific
performance criteria that outperform typical standard practice. These are confirmed by an
independent review and audit. Depending on the number of points awarded, a building can
attain basic LEED certification, or Silver, Gold, or Platinum levels. There is now a LEED
standard specific to Canada (Canada Green Building Council), with energy requirements that
are harmonized with those of CBIP.
Plateau Development Scheme
City of Iqaluit
October 2004
page 10
Table 2: Plateau Lot Development Standard
PLATEAU LOT DEVELOPMENT STANDARD
Site layout
-
Opportunities for passive solar heating of living spaces will be realized by requiring that the building façade with the most
window area be south facing ±30 degrees (ie. 150º to 210º).
-
Building entrances should avoid facing the northwest prevailing winds since these will have the highest potential for cold air
infiltration into the building. Where an entrance must face NW, a wind screen will be constructed.
-
All ground-level units in the medium density designation will be required to have an enclosed storage area on the lot. The
storage area may be attached to the principal dwelling or may be in an accessory building on the lot.
-
The use of gravel fill shall be minimized on all lots. Any area on the lot not being used for vehicular parking, access to
parking or accessory building, shall not be filled and shall be retained as natural tundra.
-
Shared driveways and building services (eg. garbage storage & oil delivery areas) shall be incorporated into site layout for
residential lots containing 2 or more units, where feasible. Adjoining residential uses will be encouraged to share driveways
and building service areas
Building Design
-
Wind exposed buildings should be designed to allow wind to flow underneath the building to avoid snow drifting directly
against building faces (i.e. no solid skirting or enclosed storage below buildings). Exceptions may be granted by the
Development Officer where the applicant can demonstrate through a snow study that downwind effects are minimized
through site layout and building design.
-
A wind study shall be required for all buildings three or more storeys in height, or with a length greater than 25m, or with a
gross floor area greater than 500m2.
-
Buildings shall be designed to respect and respond to the topography of the site. Stepping of the building to reduce massing
and excessive pile height will be required.
-
Residential units shall be encouraged to maximize solar exposure and views to the sea in active areas (such as the living
room and kitchen). Passive areas in which light, views and heat are less important (such as storage areas, utility rooms, and
bedrooms) should be located towards the building's northern facades. Avoid placement of accessory buildings in front of
south-facing windows, where possible.
-
All ground-oriented residential development shall incorporate wind lock entries (vestibules) into dwelling unit design to help
Plateau Development Scheme
City of Iqaluit
October 2004
page 11
PLATEAU LOT DEVELOPMENT STANDARD
prevent energy loss and to provide storage space, particularly to support land-based economy activities.
-
Multi-family buildings may not use an interior corridor to double load units on either side of the corridor to ensure there are
no north facing units. Common stair accesses will be encouraged.
Building Systems
-
All windows installed must be ENERGY STAR ® qualified windows under the Natural Resources Canada (NRCan) EnerGuide
Program.
-
All buildings will use the following water saving devices:
o All toilets to be water-saver or ultra-low flush toilet units using 6 litres/flush (1.3 imp. gal./flush) or less.
o All showerheads to be low-flow showerheads using 9.8 litres/min. (2.2 imp. gal./min.) or less when tested at 551 kPa
(80 psi).
o All washroom and kitchen faucets to use 8.3 litres/min. (1.8 imp. gal./min.) or less when tested at 413 kPa (60 psi).
-
All buildings will use oil-fired water heaters instead of electric water heaters.
-
All buildings will use Heat Recovery Ventilators (HRV) as a ventilation standard.
-
No buildings shall be permitted to have electric baseboard heating as the primary heating system.
-
Development may consider alternative servicing arrangements where feasible and subject to the approval of the Director of
Engineering.
Table 3: Phasing of Standard and Enhanced Requirements for Lot Development on the Plateau
PHASE
STANDARD
ENHANCED REQUIREMENTS
PHASE 1
(Upper
Plateau &
Lower
Plateau)
'Plateau Lot Development Standard'
All lot development will encourage the use of the
R-2000 standard as a guideline.
All development on Mixed Use lots to achieve
Model National Energy Code for Buildings
(MNECB) + 25%.
'Plateau Lot Development Standard'
Development to achieve R-2000 certification.
All appliances installed must be ENERGY STAR ® qualified
appliances under the Natural Resources Canada
(NRCan) EnerGuide Program.
Plateau Development Scheme
City of Iqaluit
October 2004
page 12
PHASE
STANDARD
ENHANCED REQUIREMENTS
All development on Community Use and Core
Area Use (Capital District) lots to achieve LEED ®
certification.
PHASE 2
'Plateau Lot Development Standard'
All lot development to achieve R-2000
certification.
All development on Community Use to achieve
LEED ® certification.
'Plateau Lot Development Standard'
Development to exceed R-2000 certification
requirements (targets to be reviewed and revised at
initiation of Phase 2 according to new standards).
All appliances installed must be ENERGY STAR ® qualified
appliances under the Natural Resources Canada
(NRCan) EnerGuide Program.
PHASE 3
'Plateau Lot Development Standard'
All lot development to exceed R-2000
certification requirements (targets to be reviewed
and revised at initiation of Phase 2 according to
new standards).
All development on Community Use lots to
achieve LEED ® certification.
'Plateau Lot Development Standard'
Development to exceed R-2000 certification
requirements (targets to be reviewed and revised at
initiation of Phase 2 according to new standards).
All appliances installed must be ENERGY STAR ® qualified
models under the Natural Resources Canada (NRCan)
EnerGuide Program.
Development to employ alternate sewage treatment
facilities.
Development to contain a renewable energy component
to the building's annual energy requirements and will
target a level of energy production based on the capacity
of available technologies.
Plateau Development Scheme
City of Iqaluit
October 2004
page 13
Land Uses
Land uses defined on Appendix A are conceptual and may be changed without amendment to
this Plan, as long as the proposed use is consistent with the land use designation on Figure B of
the General Plan. Changes in land use may require an amendment to the Zoning By-law.
Residential - Low Density
Residential - Low Density refers to single-
detached, semi-detached, and duplex type
dwellings. Buildings will be restricted to two
storeys in height.
Residential - Cluster Development
All lots that are identified with a 'Cluster Development' symbol provide an opportunity for
clustered housing. Opportunities for cluster housing are provided in all phases of the Upper
Plateau development. Cluster type developments will be governed by performance-based
zoning as set out in the Zoning By-law. In this way, site-specific development will be evaluated
on a set of performance criteria. Clustering results in lower land and servicing costs per unit,
can reduce exposure to extreme weather conditions, and creates an enhanced sense of
community. All cluster lots offer views of open space or the sea to provide opportunity to create
a feeling of visual privacy. Development will be restricted to ground-oriented building forms. A
cluster development is demonstrated in the Development Demonstration section.
Residential - Medium Density
Residential - Medium Density refers to ground-
oriented multi-family housing forms such as
fourplexes, sixplexes, row dwellings and
stacked row dwellings, but do not include
apartment type units.
Mixed-Use
Mixed-Use refers to buildings that include a mix of commercial and residential uses. The
residential component would be considered apartment type units located above the ground floor
of the building. The Mixed-Use lots are oriented to maximize solar exposure and to minimize
impacts on development on their northern side. The Mixed-Use lots are situated in high activity
areas at the main entrance to the Upper Plateau and close to activity areas in the Upper Plateau
(Phase 1). Mixed-Use development is restricted to a maximum of four storeys in height, but
may be restricted further in the Zoning By-law according to the location.
Community
Community refers to buildings that provide a community service. The range of uses would
include educational, recreational, and other institutional type uses, government services,
daycare, place of worship, arts studio. It is intended that these buildings could incorporate a
residential component. Community lots are located in prime locations that offer good solar
orientation, views to the sea, relatively flat building sites, and close proximity to primary roads or
intersections. Community development is restricted to three storeys in height.
Plateau Development Scheme
City of Iqaluit
October 2004
page 14
Special development conditions will apply to the Community designated lot closest to the Power
Plant located in the Upper Plateau - Phase 1 area:
-
Piped municipal servicing is not proposed to this lot, therefore alternative servicing will
be needed, subject to the approval of the Director of Engineering.
-
Design and use to address noise impacts from adjacent power plant.
-
Design must consider opportunity for energy intensive use that can employ waste heat
from the power plant.
Core Area Use
Core Area refers to uses permitted in the Core Area as defined in the General Plan No. 571.
These uses include government office, cultural/community/arts centre and limited residential
development.
Public Recreation Space
Three neighbourhood playgrounds are proposed. Two would be targeted to younger children
with play equipment - that in Phase 1 (Upper Plateau) across from the community focal point
and a second in Phase 3 (Upper Plateau). Both of the locations are centrally located with good
visibility. The last park is intended as a playing field and would be targeted to youth. This park
is less centrally located, but still has good visibility from the road.
Phase 1 of the Upper Plateau identifies a public gathering space at the tip of the triangular
Community lot. It is intended that a sculpture or other type of landmark be commissioned by the
City to define this public space as a gathering place within the neighbourhood. At the division
between Upper Plateau Phase 2 and 3, a picnic area has been identified, which ties into the
Walking Trail network.
Public Open Space
The majority of land in the Plateau
Area is designated Open Space. The
Open Space area includes the berry
picking that was identified in the City's
Cultural Resources Mapping exercise,
significant natural features, the 30m
setback from major watercourses, and
areas where the slope is too steep to
consider development. This area will
thus remain undeveloped.
A necklace of significant features have been identified on the Development Concept Plan
within the Open Space area and will be protected from development. The features include a
ring of three significant rock outcroppings that provide excellent lookouts and the lake.
Convenient walking access to these features has been preserved in the lot layout and it is
intended that walking trails be constructed when funds are available.
Affordable Housing
The City intends to improve access for lower income groups to home ownership. Currently
home ownership is largely limited to those able to buy, build and maintain a single-detached.
Plateau Development Scheme
City of Iqaluit
October 2004
page 15
Approximately 15% of the proposed ground-oriented units, or approximately 40 units, will be
targeted to lower-income groups.
Watercourse Setbacks & Drainage
The General Plan prescribes watercourse
setbacks for any lakes or streams within a
development area. The Upper Plateau
features a lake approximately 1.5 hectares
in size. A 30 metre watercourse setback
from the lake is reflected on the
Development Concept Plan.
Existing spring run-off drainage courses have been integrated into road design and alignment
where possible to avoid seepage on development lots. A drainage area in Phase 1 has been
retained and incorporated as a design feature. It is recommended that drainage be identified on
the subdivision plan to ensure proper drainage control measures are put in place at the time of
lot development.
Walking Trails
A Primary Walking Trail, as shown in Appendix C, will serve residents of the neighbourhood
on a daily basis as the primary pedestrian access route to Arctic College and the Core Area.
The Primary Walking Trail will also provide visitors to the community with a recreation
opportunity and draw visitors to the neighbourhood. The Primary Walking Trail links to the main
road in the subdivision and to a neighbourhood public space where a bus shelter is also
proposed. It is intended that the Primary Walking Trail link to the walking trail being constructed
between the future Nunavut Justice Centre and the main Arctic College building. It is
recommended that the City explore opportunities with the GN to link the trail providing access
for the Plateau and for the College campus in general. The need for stairs (grades greater than
15%) would be minimized in the final trail design to reduce maintenance costs. Surface
hardening and trail markers would establish the route and guide visitors. The Primary Walking
Trail will be constructed in Phase 1 of the Upper Plateau development.
Secondary Walking Trails are also
identified that will connect with the
Primary Walking Trail. The
Secondary Walking Trails include
established pedestrian corridors
which bisect neighbourhood blocks.
All pedestrian trail design in the
neighbourhood will incorporate
measures to discourage
snowmobile use and minimize
intermodal conflict (i.e. tall bollards,
boulders, trail markers). The trail
network has been designed with
trailheads at road ends to facilitate
access.
Source: Core Area & Capital District Plan,
August 2004
Plateau Development Scheme
City of Iqaluit
October 2004
page 16
Snowmobile Trails
North-south and east-west Snowmobile Trail links are provided as shown on Appendix C. It is
intended that an east-west route traverse along the northern edge of the Upper Plateau and
between Phase 1 and 2 of the Lower Plateau development to minimize pedestrian and
snowmobile conflicts. Snowmobile crossings across key roads would need to be properly
identified to improve their safety and to avoid piling snow in these areas.
source: Core Area Secondary Plan, 1998
Transit
Transit service is an essential component in providing transportation choice. A loop extension
to the City's existing bus transit service is proposed. The extension would connect via Saputi
Road from the existing service along Niaqunngusiaq Road, as shown in Appendix C. In Phase
1, it is proposed the bus will travel along the lower road and complete a loop before returning
along the same road. A stop with bus shelter is proposed at the tip of the triangular Community
lot intersection where a public space and trailhead are located. In Phase 2, the loop would be
expanded with a stop and bus shelter at the edge of the Phase 2 development along the main
road. Additional stops are recommended when and where demand emerges (e.g. playing field,
mixed use intersection). Bus stop locations are to be reviewed with bus operators.
Roads
Road layout maximizes accessibility while considering prevailing winds, solar orientation and
the topography of the site. None of the roads within the neighbourhood (after build out) will
terminate in a cul-de-sac. This ensures ease of movement for citizens and maximizes access
for service and emergency vehicles. The major roads are aligned with the prevailing wind
patterns to minimize snowdrifiting and thus snow removal operations. The connecting roads are
aligned to maximize solar orientation of the lots to improve passive solar heating. Roads
respond as much as possible to topography to minimize the need for grade modification. Road
layout also takes advantage of existing grade separation to present terraced building lots which
maximizes solar exposure and provides desirable views.
The road network will be utilized by not only the automobile, but also by pedestrians and
snowmobiles to a certain extent to access trailheads. Notwithstanding road allowance
standards in the General Plan, most roads in the development will be designed with a road
allowance width of 18 metres and a roadbed width of 8.5 metres. The roadbed width will allow
sufficient space for automobiles, pedestrians and snowmobiles to coexist safely. Pedestrian
Plateau Development Scheme
City of Iqaluit
October 2004
page 17
and snowmobile use of the roads, however, will be reduced by the walking and snowmobile trail
networks. Access roads that do not have lots fronting on them will be designed with a road
allowance width of 16 metres and a roadbed width of 7.0 metres as land adjacent to these roads
will not generate the same degree of pedestrian or snowmobile traffic. The narrower road
section will reduce the required quantity of aggregate by approximately 15%.
The standard road section in recent subdivisions has been approximately 1.5 metres high. This
requirement is based on recommendations to promote permafrost in the native material below
the road to provide a stable sub-base. In the study area, it is recommended that a geotechnical
investigation be undertake to determine the stability of the native material. This will allow the
road structure to be designed based on the stability of the soil, and will allow the road depth to
be reduced in areas with a stable sub-base (i.e. rock). This will result in a net reduction in the
quantity used, reducing the demand on the resource, the capital costs of the roads, and the
impact of sand and gravel on the surrounding environment. In addition, the geotechnical
investigation may identify areas of ice-rich terrain that are potentially vulnerable to thaw induced
subsidence.
Asphalt treatment is proposed on Saputi Road between Niaqunngusiaq Road and the entrance
to the Upper Plateau development to improve safety (10% grade on road), to eliminate the
raising of dust, and reduce road maintenance costs for the City. The remaining roads will be
gravel.
Servicing
The development will be serviced via utilidor, water mains and sanitary sewers, except for a
portion of Phase 3 of the Upper Plateau which will only be serviced with water and one lot in
Phase 1 of the Upper Plateau which will have no servicing. Servicing is illustrated on Appendix
B. Utilidor servicing will provide fire protection throughout the development, avoids the need for
trucked services, and allows additional time for alternate servicing technologies to be further
investigated and proven in Iqaluit.
The area of Phase 3 which is outside of the limits which can be serviced by gravity sewers is to
be serviced by alternate methods for sanitary sewage disposal. This may include grey water
recycling or on-site treatment. As this area will not be developed for several years, these
technologies will have been improved and proven, and their use will be better supported when
the area is developed.
The use of low flow water fixtures required in the lot development standards will significantly
reduce the water consumption rates and will therefore result in a reduced water bill for the
consumers, and reduced subsidization by the City. The lower water consumption will also
extend the life of some of the City's major infrastructure (i.e. the water treatment plant, water
storage, and sewage treatment), thereby delaying the required capital expenditures to upgrade
or replace this infrastructure.
It has been reported that there is a potential for the City to reduce their water reheating costs by
approximately 25% by adjusting the operating temperature set points in the reheat stations.
The design of the water distribution system for the proposed development will provide operating
set points to minimize the reheating costs to ensure these saving are realized. It is also
recommended that the City pursue the opportunity to utilize the waste heat from the Generating
Station as the primary heating source for the proposed reheat station.
Plateau Development Scheme
City of Iqaluit
DEVELOPMENT DEMONSTRATION
The following 3 figures (Figures 1, 2 and 3) demonstrate conceptual site plans for lots within 3 areas typical of the subdivision as a whole. These site plans demonstrate the relationships between adjacent buildings, and
highlight elements of site design that should be incorporated to ensure the achievement of this plan's principles.
A dot-hatch used in the Figures delineates the bounds of a service area that will accommodate vehicle parking and garbage storage. It is intended that gravel imported to the lots be limited where possible to this area, to
minimize disturbance of the existing landscape.
A line-hatch used in the Figures delineates the location of entry and storage areas within each dwelling. It is intended that primary entrances, storage areas and utility areas be located along the north, north-eastern, or north-
western facades of buildings within the development, to maximize views from, and solar penetration to living areas of dwellings. Where entrances must face NW, a wind screen would be constructed.
Building siting shown in the Figures maximizes solar exposure and views south to the sea. Wherever possible, buildings are offset so that side yards on one side of a roadway do not align with side yards on the opposing side
of the roadway. Views and solar exposure are also enhanced by the grade change that occurs through most of the subdivision, as illustrated by the section in Figure 1. This section also serves to illustrate the extent of
shadows cast by buildings at noon on the summer and winter solstice, as well as the shadow cast at noon on the spring and fall equinox.
Figure 1 illustrates hypothetical site plans for lots within Phase 2, designated for low and medium density residential development. The standard low density interior lot size of 20 metres by 25 metres allows for dwellings that
will include both detached and semi-detached dwellings. The standard low density interior lot size of 30 metres by 25 metres allows for dwellings that will include both detached and semi-detached homes. The standard
medium density interior lot size of 30 metres by 25 metres allows for a variety of dwellings including 4 unit row homes as illustrated.
Figure 2 illustrates a hypothetical site plan for a low density residential cluster lot within Phase 1. The intent of this large site is to encourage the construction of lower density residential building forms at a density higher than
the norm in Iqaluit, by using shared service, parking and amenity areas (both indoor and outdoor).
Figure 3 illustrates hypothetical site plans for a row of lots in Phase 1 designated for low density residential development. Although the width of the lots is of standard size the depth of the lots is shallow relative to the
convention in Iqaluit. Strips of lots on the periphery of the subdivision have are of a reduced depth to maximize development potential within the subdivision. Issues generally related to smaller lot sizes (such as cramping,)
are negated in the case of the exterior lots by the fact that all of the smaller lots are located either at the crest of the slope separating the upper and lower phases, or along an open area such as a watercourse setback.
Since the land adjoining the rear lot line of these smaller lots can not be developed, these lots will always offer expansive views to the sea or over the tundra that will create an enhanced sense of space around new
development.
Plateau Development Scheme
City of Iqaluit
October 2004
page 22
IMPLEMENTATION
Planning & Lands Administration
Lot pricing
The City currently prices lots by dividing the total land development costs by the developable lot
area, which provides an average cost per square metre over the entire subdivision, and then
calculates the lease amount for each lot based on the area of the lot. The City's Land
Administration By-law permits land to be priced differentially by as much as 25% to account for
Site Specific Factors such as site conditions, desirability of location, proposed land use and
proposed land use. It is recommended that the City price lots differentially to reflect access to
Open Space, views and development potential. For example, Residential - Low Density lots
that back onto Open Space and have prime views (ie. are located on the Upper Plateau main
ridge line) could be assigned a 10% price per square metre premium over the price of other lots
within the same land use designation. Residential - Low & Medium Density lots that simply
back onto Open Space would be assigned a 5% premium over the price of other lots. Similarly,
lots with greater development potential have greater value than those with less development
potential. Premiums would therefore be assigned to lots depending on the permitted density
and uses on the lot.
Lot Leases
The City will retain fee simple title to all lands in the subdivision and will sign equity leases with
successful applicants. It is recommended that the City include a restrictive covenant in all
leases stating that any development on the lot shall be in keeping with the policies of the
General Plan, as amended, and the Plateau Development Scheme, as amended.
Lot leasing process
Typically successful applicants for leases are awarded a lot by ballot draw or through a call for
proposal process. Low density residential lots are awarded by ballot draw and all other lots are
awarded by call for proposal. It is recommended that this process of leasing lots continue,
however, with some adjustments.
Ballot draw process: The current ballot draw process awards residential lots in a
sequential order to successful applicants. In this way, the applicant does not have a
choice of lots. Since it is recommended that lots be priced differentially and that they
vary in size, thus impacting the range of permitted use on a given lot, it is desirable to
introduce some level of choice in the ballot draw process. It is recommended that the
City adopt a process whereby the applicant lists in priority order the lots that they would
be interested in leasing should their name be drawn. As each name is drawn, the
applicant is awarded the first lot that is still available as they go down the applicant's list.
In this way, applicants can prioritize their choice according to the cost and location of the
lot or permitted uses on the lot. It is recommended that the City continue its practice of
preferential priority for first time homeowners.
Call for proposal: All lots other than low density residential lots are awarded by call for
proposal. It is recommended that evaluation criteria include sustainability criteria
consistent with the development policies of the Plateau subdivision. For example, points
should be awarded for any proposal that exceeds basic lot development standards. Call
for proposals are also recommended for select medium density residential lots for the
Plateau Development Scheme
City of Iqaluit
October 2004
page 23
development of freehold row housing units to improve access to affordable housing, as
discussed below.
Affordable Housing
In order to improve affordable access to ground-oriented home ownership, it is recommended
that the City reserve select medium density residential lots in each phase of development and
award the lots based on a call for proposal to develop freehold row housing units. Criteria for
the call for proposal will stipulate development and severance of lots within three years and will
be evaluated based on life cycle costing of the units, flexibility and quality of design, adherence
to the lot development standards, among other criteria as appropriate. Freehold townhomes
provide ground-oriented housing that require less land per lot and are typically more energy
efficient than single-detached homes. These characteristics reduce up-front capital costs and
reduce on-going maintenance and operating costs and are thus considerably more affordable
than single-detached housing forms. In each phase of development, the City should target that
15% of ground-oriented units be developed in this way.
Communication Strategy
Communicating and marketing the benefit of sustainable development practices is a key issue
in their advancement. It is recommended the City consider preparing a kit for the builder/home
owner that contains the following:
A summary of the societal benefits resulting from small interventions by individuals that
help make the whole community more self-reliant.
Information sheets that demonstrate to builders and future homeowners the reduced
operating costs resulting from the additional capital costs.
Easy to use and understand information sheets that outline the Plateau Lot Development
Standard with illustrative sketches for each development standard.
List of suppliers with contact information where builders can purchase water saving
devices, heat recovery ventilators, ENERGYSTAR windows and appliances, etc.
Permit Review Process
Through the development permit and building permit process, the City will be responsible for
ensuring that development proposals meet the Plateau Lot Development Standard and any of
the applicable enhanced development requirements.
Partnerships
Nunavut Power Corporation
City to work with Nunavut Power Corporation (NPC) to:
-
Investigate the technical and economic feasibility of providing waste heat from the NPC
Generating Station to buildings in the subdivision and/or for a municipal reheat station.
Feasibility analysis will consider factors such as subdivision design, the size and scale of
buildings, the heating demand of buildings, and availability of waste heat, among others.
-
Investigate the technical and economic feasibility of undertaking the development of a
distributed generation facility, for Upper Plateau Phase 3 development, or as
appropriate.
Plateau Development Scheme
City of Iqaluit
October 2004
page 24
Government of Nunavut
City to work with the Government of Nunavut to:
-
Investigate opportunity to open existing private cul-de-sac road to College residences as
a public road to provide access to the proposed Lower Plateau development.
-
Explore technical feasibility and cost-sharing potential for extension of water and sewer
services into the Arctic College lot to service Lower Plateau development and College
Expansion.
-
Explore feasibility and cost-sharing potential for linking the Primary Walking Trail (as
shown on Appendix C) from the Upper Plateau Phase 1 through the Arctic College lot to
the Nunavut Justice Centre and Core Area.
-
Survey lot within Plateau subdivision identified as 'College Expansion Area' for transfer
to the GN Department of Education to become part of the Arctic College lot (800-SK-
027).
-
Explore possible opportunity to approach Arctic College to request that they surplus a
portion of their Reserve #032T (800-SK-027) to allow for the City to develop lot identified
as 'Core Area Use' within Lower Plateau Phase 1. This lot will then be considered
"untitled municipal land" according to the Nunavut Land Claim Agreement and will be
available to be transferred to the City.
-
Explore opportunity to connect service and parking access road shared by Arctic College
and Nunavut Justice Centre to the Lower Plateau Phase 1 Road to provide an alternate
emergency access route to this area (as shown on Appendix C) should the main road in
the vicinity of the College residences be obstructed. This access route is envisioned as
a right-of-way easement across the Arctic College lot.
Federal Agencies/Organizations (NRCan, CMHC, FCM, etc)
City to work with Federal agencies to explore opportunities to:
-
Access funding programs for the development of the subdivision and to fund
demonstration projects of sustainable building designs (eg. FCM Green Municipal
Enabling Funds or Investment Funds).
-
Provide the City and development community with technical expertise, training, and
technical information (eg. R-2000 certification, EnerGuide Program, water-saving
devices, heat recovery ventilators, etc.).
-
Identify financial incentive programs that developers/home builders can apply for (eg.
Commercial Building Incentive Program).
-
Assist the City in communicating sustainability objectives and approaches being pursued
in the City to a broader audience.
Amendments to General Plan & Zoning By-law
The following amendments to the General Plan will be required:
-
Figure B to be amended to redesignate the Future Development Area A to Residential
Community, Open Space and Core Area, all subject to the Plateau Development
Scheme.
-
Figure C to be amended to identify the relocated Walking and Snowmobile Trails.
Plateau Development Scheme
City of Iqaluit
October 2004
page 25
-
Figure D to be amended to identify the proposed road network.
-
Section 5.9 (Future Development Area) be amended to reflect the
development proposed in Area A.
The following key amendments to the Zoning By-law may be required:
-
Schedule B to be rezoned from Municipal Reserve to the appropriate zones in
the Zoning By-law.
-
A new zone created that contains special provisions for cluster housing forms.
-
Provisions that permit row housing units to be legally severed.
-
Review of yard setback requirements in all zones with view to relaxing
some requirements.
Further Studies
It is recommended that the City undertake a geotechnical investigation and an environmental
assessment in the Upper and Lower Plateau development areas.
Geotechnical investigation: The purpose of the geotechnical investigation is to
determine the stability of the native material. This will allow the road structure to be
designed based on the stability of the soil, thus resulting in a net reduction in the
quantity of gravel fill used. This in turn will reduce the demand on the resource, the
capital costs of the roads, and the impact of sand and gravel on the surrounding
environment. In addition, the geotechnical investigation may identify areas of ice-rich
terrain that are potentially vulnerable to thaw induced subsidence.
Environmental Assessment: The purpose of the environmental assessment is to
determine whether any contamination exists in the development areas. An
environmental clearance letter is required by each mortgagee and the City can
reduce the overall costs to individual builders by commissioning an assessment for
the entire development area at one time.
Monitoring
In implementing the policies of this Development Scheme the following should be monitored
and reviewed at the beginning of each phase of development:
targeted and required lot development standards at each phase of development;
housing demand and needs;
demand for non-residential development lots;
the success of call for proposals for development of freehold townhomes;
the development of R-2000 expertise and certified R-2000 builders in the community;
recurrent issues/challenges in the development review process that may need to
be addressed with Zoning By-law amendments or other corrective measures.
Plateau Development Scheme
City of Iqaluit
Plateau Development Scheme
City of Iqaluit
Plateau Development Scheme
City of Iqaluit
Plateau Development Scheme
City of Iqaluit
Plateau Development Scheme
City of Iqaluit
ANNEX B - INUIT OWNED LAND PARCEL
'E' DEVELOPMENT SCHEME
Plateau Development Scheme
City of Iqaluit
INUIT OWNED LAND PARCEL E
Lot 1, Block 205, Plan 79985 CLSR
Development Scheme
March 2014 (Updated July 2014)
Contents
1.
Development Scheme for IOL Parcel E
4
1.1 General Development Plan for Municipal IOL Parcels in
the Qikiqtani Region
4
1.2 Site Context and Development Scheme Areas
4
1.3 Vision for IOL Parcel E
5
1.4 Planning Principles
7
1.5 Evaluation of Conceptual Land Use Options
10
1.6 Development Scheme Summary
11
1.7 Land Uses
14
1.8 Land Development Guidelines
22
INUIT OWNED LAND PARCEL E
1. Development Scheme for IOL Parcel E
1.1 General Development Plan for Municipal IOL
Parcels in the Qikiqtani Region
The General Development Plan for Municipal IOL Parcels in the
Qikiqtani Region was completed in April 2013. The Plan provides an
overview of municipal Inuit Owned Land holdings and includes
recommendations regarding consultation, benefit statements, and
development strategies across a range of land uses. All development
on municipal Inuit Owned Land will be guided by the Nunavut Land
Claims Agreement, including the following objectives:
- To provide for certainty and clarity of rights to ownership and
use of lands and resources, and of rights for Inuit to participate
in decision-making concerning the use,
management and conversation of land, water and resources,
including the offshore.
- To provide Inuit with wildlife harvesting rights and rights to
participate in decision-making concerning wildlife harvesting.
- To provide Inuit with financial compensation and means of
participating in economic opportunities.
- To encourage self-reliance and the cultural and social well- being of
Inuit.
The Development Scheme for IOL Parcel E demonstrates the intent of
Article 17 of the Nunavut Land Claims Agreement which states:
"The primary purpose of Inuit Owned Lands shall be to provide Inuit
with rights in land that promote economic self-sufficiency of Inuit
through time, in a manner consistent with Inuit social and cultural
needs and aspirations."
1.2 Site Context and Development Scheme Areas
As described in Section 3.2 above, IOL Parcel E is located within the Federal
Road Special Policy Overlay area. The Overlay also applies to non-Inuit Owned
Lands along the Federal Road corridor. These include a strip of land directly
south of IOL Parcel E with frontage on Federal Road, an industrial area on the
south side of Federal Road, and a residential area to the southeast of IOL Parcel
E. Figure 5 shows the four areas contemplated in the Development Scheme.
A - IOL Parcel E: This area is the primary focus of this planning rationale report.
Detailed land use, transportation and municipal servicing analyses have been
conducted for the parcel to deter- mine the highest and best use of land.
B - Federal Road Frontage Area: This area is important to the future
development potential and access to IOL Parcel E. All parcels in this area have
frontage on Federal Road. As the corridor trans- forms into a gateway to the
Core Area, these parcels may come under increased development pressure.
Future redevelopment of these parcels will be consistent with Federal Road
Special Policy Overlay policies until a Development Scheme for the Overlay area
is completed.
C - Federal Road Industrial Area: This area is located on the south side of Federal
Road, directly across from IOL Parcel E. Similar
to the Federal Road Frontage Area, this area may face increased development
pressure over the long term due to its Federal Road frontage and proximity to
the Core Area. Future redevelopment of these parcels will be consistent with
Federal Road Special Policy Overlay policies until a Development Scheme for the
Overlay area is completed.
DEVELOPMENT SCHEME
5
1.3 Vision for IOL Parcel E
D - Federal Road Existing Residential Area: Located to the south-
east of IOL Parcel E, this area falls under Special Exception Zone 1
(B2(1)) in the Zoning By-law, which allows the existing residential
uses. Future extension of the Core Area may increase development
pressure in this area.
Figure 1: The site's topography provides views to the land.
The development of IOL Parcel E reinforces Inuit rights in land
by encouraging uses that capture the highest and best use
of the land in terms of economic development, environmental
stewardship and cultural expression. All residents of Iqaluit will
benefit from the creation of a strong gateway into the city along
Federal Road. Development on these Inuit Owned Lands will
celebrate and promote Inuit cultural heritage and contribute to the
long-term economic, social and environmental sustainability of the
city.
IOL Parcel E will take advantage of its location in the landscape
by protecting important views and vistas, enhancing connections
through the community to the land, and protecting areas for
cultural activities. The community will be human scaled, providing
safe and accessible public spaces connected by trails and a
connected network of local roads.
Development within IOL Parcel E will showcase innovative
approaches to city building and sustainable design, ones that
prioritize the development of a complete community through
coordinated private and public investment. As a complete
community within the broader city, IOL Parcel E will offer a range
of housing options, commercial opportunities and cultural
experiences.
7
INUIT OWNED LAND PARCEL E
B
Development Scheme Areas
A
A - IOL Parcel E
B - Federal Road Frontage Area
C - Federal Road Industrial Area
D - Federal Road Existing Residential Area
Federal Road Special Policy Overlay Area
Core Area
ᐱᕙᓪᓕᐊᑎᑦᓯᕕᐅᔪᑦ ᐃᓃᑦ
A - ᐃᓄᐃᑦ ᓇᖕᒥᓂᖁᑎᖏᑦ ᓄᓇᐃᑦ E
B - ᐅᑭᕝᕕᑐᖃᓕᐊᕆᐊᖅ ᐊᖅᑯᑦ ᐃᒡᓗᐃᑦ ᓯᕗᕋᖏᑦ
C - ᐅᑭᕝᕕᑐᖃᓕᐊᕆᐊᖅ ᐊᖅᑯᑦ ᓴᓇᕝᕕᒡᔪᐊᓄᑦ ᐃᓃᑦ
D - ᐅᑭᕝᕕᑐᖃᓕᐊᕆᐊᖅ ᐊᖅᑯᑦ ᒫᓐᓇ ᐊᖏᕐᕋᖃᕐᕕᐅᔪᖅ
ᐅᑭᕝᕕᑐᖃᓕᐊᕆᐊᖅ ᐊᖅᑯᑦ ᐊᔾᔨᐅᖏᑦᑐᒃᑯᑦ ᐊᑐᐊᒐᖃᕈᑕᐅᔪᖅ
ᐸᔾᔭᕐᓘᑎᓯᒪᓂᐊᓄᑦ
ᐊᐅᓚᑦᓯᕝᕕᒃ
D
Figure 2: Development Scheme Areas.
C
7
DEVELOPMENT SCHEME
1.4 Planning Principles
The following planning principles will guide the Development
Scheme and Plan of Subdivision for IOL Parcel E lands:
Enhance relationships to the natural environment: Minimize the
impacts of development and promote connection to the land
through the use of environmental stewardship best practices and
innovative technologies.
Achieve the highest and best use of the land: Promote economic
self-sufficiency and prosperity by allowing for an appropriate mix of
land uses, establishing density targets and identifying long-term
infrastructure requirements.
Celebrate culture: Support Inuit cultural expression through the
development of a cultural hub and preservation or enhancement of
land access routes, views and vistas, and open spaces. Continuity of
heritage and cultural expression within the development, either
through future building design or businesses and program delivery
within future buildings will be elaborated within future development
permit applications.
Support a mix of uses: Allow for a mix of land uses that address
the long-term residential, commercial and cultural needs of the
community.
Create a beautiful and safe public realm: Use Crime Prevention
Through Environmental Design (CPTED) principles and urban de-
sign guidelines to establish an inviting and accessible public realm
with connections to the broader community.
Establish a gateway to the Core Area: Establish a unique, culturally
appropriate and welcoming gateway to the Core Area from the
Airport.
CULTURAL PRINCIPLES INFORMING THE
PLAN
7
INUIT OWNED LAND PARCEL E
Conceptual Land Use Option 1
LEGEND:
RESIDENTIAL (MULTI-PLEX, APARTMENTS)
ELDERS FACILITY/HOUSING
OFFICE/MIXED-USE OFFICE
COMMERCIAL/COMMERCIAL MIXED-USE
HOTEL/CONFERENCE
HERITAGE/CULTURAL/ARTS
EMERGENCY SERVICES
OUTDOOR PARK SPACE
LOCAL ROAD
SERVICE ROAD
EXISTING AND PROPOSED SNOW MOBILE TRAIL
EXISTING WALKING TRAIL
RECREATIONAL DESTINATION
POTENTIAL INTERSECTION
IOL LANDS
STEEP SLOPE
EXISTING MAJOR SNOW DEPOSITION AREA
Figure 3: Development Scheme Option 1 with centrally located cultural hub.
9
DEVELOPMENT SCHEME
Conceptual Land Use Option 2
LEGEND:
RESIDENTIAL (MULTI-PLEX, APARTMENTS)
ELDERS FACILITY/HOUSING
OFFICE/MIXED-USE OFFICE
COMMERCIAL/COMMERCIAL MIXED-USE
HOTEL/CONFERENCE
HERITAGE/CULTURAL/ARTS
EMERGENCY SERVICES
OUTDOOR PARK SPACE
LOCAL ROAD
SERVICE ROAD
EXISTING AND PROPOSED SNOW MOBILE TRAIL
EXISTING WALKING TRAIL
RECREATIONAL DESTINATION
POTENTIAL INTERSECTION
IOL LANDS
STEEP SLOPE
EXISTING MAJOR SNOW DEPOSITION AREA
Figure 4: Development Scheme Option 2 with cultural hub located on Federal Road.
9
INUIT OWNED LAND PARCEL E
1.5 Evaluation of Conceptual Land Use Options
The conceptual land use options shown above in Figures 3 and
4 were developed for IOL Parcel E in consultation with QIA's
Community Land and Resource Committee (CLARC), Government of
Nunavut and development industry stakeholders. Each option was
evaluated within the context of the planning principles outlined in
Section 4.4 of this report. Options were also tested for their ability
to meet municipal servicing and infrastructure standards.
Through evaluation and testing, Conceptual Land Use Option 1
emerged as the preferred land use concept for the Development
Scheme.
Conceptual Land Use Option 1
Opportunities
- Preferred location for the Heritage Museum and Visual Arts
Centre and hotel/conference amenities. Central Location
within the development area allows for integration of cultural
amenities on site.
- New roads parallel to Federal Road provide accessibility
through site, with connections onto Federal Road.
- Cross-site connections to natural features via trails and
snowmobile routes.
- Opportunity to extend existing Core Area and enhance visual
quality and urban experience along Federal Road with mixed-
use frontage.
- Opportunities to connect into existing municipal services along
Federal Road.
- Limited constraints to expanding municipal services from
existing serviced area.
Issues
- Multiple connections to Federal Road may not provide optimal
intersection spacing and may have negative impacts on traffic
flow.
- Single-loaded roads against rock face in the east end of the site
and behind hotel/conference amenities do not achieve the
highest and best use of proposed road infrastructure.
Conceptual Land Use Option 2
Opportunities
- Location of the Heritage Museum and Visual Arts Centre and
hotel/conference amenities allows for direct access to and
from the cultural hub on Federal Road.
- New roads parallel to Federal Road provide accessibility
through site, with connections onto Federal Road.
- Cross-site connections to natural features via trails and
snowmobile routes.
- Opportunities to connect into existing services along Federal
Road.
- Limited constraints to expanding municipal services from
existing serviced area.
11
DEVELOPMENT SCHEME
1.6 Development Scheme Summary
Issues
- Location of the Heritage Museum and Visual Arts Centre and
hotel/conference amenities is disconnected from open
spaces. Soil conditions along Federal Road do not allow for
taller buildings.
- Location of the Heritage Museum and Visual Arts Centre and
hotel/conference amenities interrupts the mixed-use office
frontage along Federal Road.
- Multiple connections to Federal Road may not provide optimal
intersection spacing and may have negative impacts on traffic
flow.
- Single-loaded road against rock face in the east end of the site
does not achieve the highest and best use of proposed road
infrastructure.
- Mixed-use commercial areas are internal to the site with no
direct access to and from Federal Road.
- Residential uses are located in areas that do not take
advantage of the site's natural topography to provide views and
vistas.
- Location of the Heritage Museum and Visual Arts Centre and
hotel/conference amenities and road network do not allow for
maintenance of an existing walking trail.
The Development Scheme for IOL Parcel E proposes future land
uses to support the development of a complete community. Key
features of the Development Scheme include:
New Residential Development: A residential area in the southeast
area of the site can accommodate a range of needs from Elders'
to family to employee housing. The Development Scheme and
related Plan of Subdivision support the future development of
housing types that respond to the social, economic and cultural
needs of both Inuit and non-Inuit. The Residential Area is located
on an existing rock outcropping and features a road alignment
across the top of the rock, providing a double-loaded road and the
potential for terraced residential units that complement the Plateau
Subdivision. In addition to the Residential Area, residential uses are
proposed in Mixed Use areas along Federal Road. This mix of
residential and commercial uses is intended to support a safe and
vibrant public realm within Mixed Use areas.
A Mixed-Use Gateway and Future Expansion of the Core Area:
Mixed Use areas along Federal Road enable the development of
commercial and residential uses. The Development Scheme
contemplates the future extension of the Core Area along the
Federal Road corridor towards the redeveloped Airport. While
blocks along Federal Road are currently designated Commercial, the
Development Scheme has been designed to meet the Core Area
requirements and enable intensification, growth and Core Area
expansion over time.
A Cultural Hub: The Development Scheme protects for a potential
future Nunavut Heritage Museum and Visual Arts Centre, in
11
INUIT OWNED LAND PARCEL E
Figure 5: Development Scheme for IOL Parcel E.
13
DEVELOPMENT SCHEME
addition to a hotel and conference centre, located in the centre of
the site. These cultural uses would establish the area as an important
cultural destination within the city, drawing economic activity to the
area and the broader city.
A Connected Transportation Network: The proposed internal road
network provides a high degree of east-west connectivity across IOL
Parcel E in addition to key north-south access to the site from
Federal Road. The Development Scheme and Plan of Subdivision
protect for road allowances that may be developed in the future;
however, site connectivity will not be negatively impacted should
they remain undeveloped. Additionally, the Development Scheme
contemplates a future road connection to the Commissioner's Land
north of IOL Parcel E, should this area develop in the future.
Connections to the Land: The Development Scheme features a
large Open Space area and active Parks and Recreation lands in
the area around Carney Creek, directly adjacent to the Cultural
Hub. Existing snowmobile trails will be protected in these areas,
providing direct connections to the land through the site. In
addition, activities such as berry picking and outdoor cultural
programming will be encouraged in Open Space areas.
A Supporting Plan of Subdivision: In addition to the Development
Scheme, QIA/QC has prepared a Plan of Subdivision to implement
the Development Scheme at the block scale, allowing maximum
flexibility as development of the site occurs over time.
The Plan of Subdivision was developed and tested using typical
building types existing within the City and meets all requirements
of the City of Iqaluit Zoning By-law (see Plan of Subdivision under
separate cover).
Figure 6: Conceptual massing for IOL Parcel E, looking southeast toward the
Core Area from the Plateau Subdivision.
Figure 7: Conceptual massing for IOL Parcel E, looking northwest along the
Federal Road corridor.
13
INUIT OWNED LAND PARCEL E
1.7 Land Uses
Proposed land uses within the Development Scheme for IOL Parcel
E are shown above in Figure 5. Land uses are conceptual and may
be refined or changed in future stages of planning. All land uses
described below are permitted as-of-right or through minor variance
within the District Commercial Zone (B2), Light Industrial Zone (M1),
and Open Area Zone (OR) currently in place for IOL Parcel E. Future
amendments to land use may require amendments to the Zoning
By-law.
1.7.1 Commercial Uses
Mixed Use Office: There are two Mixed Use areas within IOL Parcel
E, both with frontage on Federal Road. The Mixed-Use Office area
is the western-most block, directly south of the proposed Hotel and
Conference Centre. Mixed Use Office refers to a mix of commercial
uses with a predominantly office character. This area will support
both horizontal mixing (different uses in separate buildings) and
vertical mixing (different uses in the same building). In cases of
vertical mixing, office and other commercial uses will be ground-
oriented with some residential uses on upper floors of the building.
Development in this area is restricted to a maximum of four storeys
in height. If, in the future, IOL Parcel E is designated Core Area,
building heights in the Mixed-Use Office area may be increased as
per Section 5.1.1 of the General Plan.
Mixed Use Office Area Summary
Total Land Area
0.82 ha / 2.03 ac
Total Gross Floor Area (approx.)
9,400 m2
Total Commercial GFA (approx.)
2,300 m2
Total Residential GFA (approx.)
7,100 m2
Average Residential Density
87 units/net ha
Parking Spaces
93
Site Coverage
29%
Mixed Use Residential: The Mixed-Use Residential area is located
east of the Mixed-Use Office block and south of the proposed
Residential area. Mixed Use Residential includes a mix of
commercial and residential uses. This area will support both
horizontal mixing (different uses in separate buildings) and vertical
mixing (different uses in the same building). In cases of vertical
mixing, commercial uses will be ground-oriented with residential
uses on upper floors of the building. Development in this area is
restricted to a maximum of four storeys in height. If, in the future,
IOL Parcel E is designated Core Area, building heights in the Mixed-
Use Office area may be increased as per Section 5.1.1 of the
General Plan.
15
DEVELOPMENT SCHEME
Heritage Museum and Visual Arts Centre Summary
Total Gross Floor Area (approx.)
9,640 m2
Parking Spaces
75
Heritage Museum and Visual Arts Centre: The proposed location of
the Heritage Museum and Visual Arts Centre in the centre of IOL
Parcel E encourages the development of a cultural hub at the gate-
way to the city (see Figure 11). The Heritage Museum and Visual
Arts Centre is proposed as a Commercial/Institutional use under
the Core Area designation. Existing District Commercial (B2) zoning
may require a minor variance to allow development of the Heritage
Museum and Visual Arts Centre as a Museum/Library. Although a
planned use within the Development Scheme, should a Heritage
Museum and Visual Arts Centre not be built on IOL Parcel E, its
proposed location can accommodate a range of other similar
Commercial/Institutional uses (e.g. a community/recreation centre,
a sports centre, other large-scale cultural uses, etc.).
Hotel and Conference Centre: A Hotel and Conference Centre is
shown directly adjacent to the proposed Heritage Museum and
Visual Arts Centre. The Hotel and Conference Centre presents a
significant economic development opportunity and also supports
the establishment of a cultural hub at the gateway to the city. The
Hotel and Conference Centre is a Commercial use under the Core
Area designation. Existing District Commercial (B2) zoning allows
for the as-of-right development of the Hotel and Conference Centre
as a Hotel (see Figure 12).
Hotel and Conference Centre Summary
Total Gross Floor Area (approx.)
9,400 m2
Parking Spaces
60
Emergency Services: An Emergency Services facility is proposed for
the easternmost portion of IOL Parcel E, with frontage on Federal
Road. Development of this facility will require either a lease
agreement or land exchange between QIA and the City of Iqaluit.
Preliminary facility design provides for direct vehicular access onto
Federal Road as well as side access via a potential service road on
the western side of the lot (see Figure 12).
Mixed Use Residential Area Summary
Total Land Area
1.4 ha / 3.46 ac
Total Gross Floor Area
(approx.)
14,600 m2
Total Commercial GFA
(approx.)
3,600 m2
Total Residential GFA
(approx.)
11,000 m2
Average Residential Density
79 units/net ha
15
INUIT OWNED LAND PARCEL E
Figure 8: Conceptual rendering of the proposed Nunavut Heritage Museum and Visual Arts Centre (source: Diamond + Schmitt Architects).
17
DEVELOPMENT SCHEME
Figure 9: Right: Conceptual rendering of the proposed Hotel and Conference Centre (source: Livingstone Architects) and left: City of Iqaluit Emergency Services Centre (source: Stantec).
17
INUIT OWNED LAND PARCEL E
Emergency Services Summary
Total Gross Floor Area (approx.)
1,320 m2
Parking Spaces
25
Site Coverage
25%
1.7.2 Residential Uses
Multi-Unit Residential: Development in the Residential area located
in the southeast portion of IOL Parcel E will have a Multi-Unit
Residential character. This refers to multi-family housing such as
duplexes, fourplexes, sixplexes, row dwellings, stacked row
dwellings and apartments (see Figure 13). Multi-Unit Residential
buildings may follow Cluster Development principles (described
below).
Cluster Development: This form of development, as described in
the Plateau Development Scheme and City of Iqaluit Zoning By-
law, may be used in the Residential area of IOL Parcel E. Cluster
Development often results in reduced land and servicing costs and
can be designed to meet enhanced performance criteria regarding
snow and wind exposure. Similar to the intent described in the
Plateau Development Scheme, Cluster Development may also be
used on IOL Parcel E to take advantage of views and vistas and
create a sense of community. Built form in Cluster Development
areas will include Multi-Unit Residential types.
1.7.3 Industrial Uses
The area to the west of Carney Creek is designated Industrial and
zoned Light Industrial Zone (M1). The Development Scheme for IOL
Parcel E does not contemplate changes to the existing land use
designation or zoning in this area. Currently, the area has trucked
services. Any future non-industrial uses on these lands will require
a servicing analysis and plan prior to development. The lands
designated Industrial within IOL Parcel E are not included in the
Federal Road Special Policy Overlay area.
Industrial Summary
Total Land Area
2.13 ha / 5.27 ac
Residential Summary
Total Land Area
1.82 ha / 4.51 ac
Total Gross Floor Area
(approx.)
8,700 m2
Total Residential Units
(approx.)
66
Total Residential GFA
(approx.)
8,700 m2
19
DEVELOPMENT SCHEME
Figure 10: Residential precedents in the City of Iqaluit, including high, medium and low density built form.
19
INUIT OWNED LAND PARCEL E
1.7.4 Parks and Recreation
Parks and Recreation areas within IOL Parcel E include a large area
located directly to the east of Carney Creek, south of the Open
Space area and west of the proposed Heritage Museum and Visual
Arts Centre. The Parks and Recreation area is situated on relatively
even ground and can accommodate major recreational
infrastructure such as an outdoor skating rink, baseball diamond or
soccer pitch. A linear strip of Parks and Recreation land runs along
the east bank of Carney Creek across IOL Parcel E, providing land-to-
sea connections for snowmobiles and pedestrians.
In addition to the Parks and Recreation area shown in the
Development Scheme, smaller Parks and Recreation areas in the
form of tot lots will be accommodated within Residential areas
in order to satisfy the requirements of Section 5.7 of the City of
Iqaluit General Plan.
Parks and Recreation Summary
Total Land Area
0.43 ha / 1.06 ac
1.7.5 Open Space
A large portion of IOL Parcel E is designated Open Space. The
Open Space area is located in the northwest of the parcel and
includes a large rock outcropping that transitions into a valley to
the north. The slope in the northern portion of this area is steep;
however, future development of portions of this Open Space area
may be achievable through innovative building design or should
the Commissioner's Land adjacent to IOL Parcel E be developed
in the future. The southern portion located adjacent to the
proposed cultural hub provides opportunities for both passive and
active recreation. The Development Scheme for IOL Parcel E also
prioritizes pedestrian and snowmobile connectivity to and through
the area. Pedestrian and snowmobile trails link Open Space to
commercial, residential and cultural areas within the parcel and
provide important links to the land and sea.
Open Space Summary
Total Land Area
5.18 ha / 12.8 ac
1.7.6 Trails
The Development Scheme respects informal snowmobile and
walking trails currently in use on the site. A known snowmobile
trail along Carney Creek is protected within the Parks and
Recreation land use within a watercourse buffer. Site circulation is
also supported by the potential network of pedestrian and
snowmobile linkages shown in the Development Scheme. Links
between residential, commercial and cultural uses are proposed in
order to support community connectivity and access to daily needs.
The Development Scheme supports future extension of the Core
Area designation along Federal Road by establishing a minimum 3
metre setback on the corridor, allowing for the development of
demarcated pedestrian spaces. Principles included in the City of
Iqaluit Core Area Redevelopment Plan regarding snowmobile access
and creating a walkable city can be accommodated within the
Development Scheme to enhance connectivity between the Core
Area, new development and the land.
21
DEVELOPMENT SCHEME
1.7.7 Roads and Transit
1.7.8 Municipal Servicing
The road layout within the Development Scheme maximizes
connectivity. Prevailing winds, site topography and solar
orientation of buildings were taken into consideration when
developing the road network. Roads within the Development
Scheme are aligned to minimize snowdrifting and enable lot
patterns that maximize solar orientation. The road network
responds to site topography, particularly in the east. In this area,
the road runs along the top of a rock outcropping to provide access
to a residential community and to reduce drift deposition on the
road. Grade modifications are re- quired to develop this road.
Access from the east (near the Emergency Services building) is
proposed at a slope of approximately 3%. In the west (near the
cultural hub), the slope is a maximum of 10%. This road provides
access to building lots with superior soil, enabling terraced
construction and attractive views.
The road network will accommodate multiple users, including
vehicles, pedestrians and snowmobiles. However, pedestrians and
snowmobiles will also have access to a dedicated trail system,
reducing their reliance on public roads for mobility.
The Development Scheme anticipates future widening of Federal
Road to a 25 metre right-of-way, as illustrated in the proposed
Plan of Subdivision. Otherwise, all roads within the Development
Scheme are designed with an alternative 18 metre right-of-way, as
per Section 6.4.3 of the General Plan.
Municipal services required within the development include a water
distribution system, sanitary sewer collection system and a storm-
water drainage system.
The water and sanitary systems should be below-grade or buried
systems with both water and sanitary sewer mains located in
a common trench. Maintenance access to the water and sewer mains
should be provided through access vaults which protrude above the
surface. The water and sewer mains and access vaults are most
commonly located within the road right-of-way or within a service
easement.
The stormwater drainage system within the City of Iqaluit consists of a
series of natural or channelized major drainage courses, secondary
drainage or roadside ditches, and culverts. Within IOL Parcel E, the
proposed stormwater drainage system will primarily comprise roadside
ditches and culverts, located within the road right-of-way. Drainage
within development blocks will be designed to work with the proposed
major drainage structures and will be designed in future stages of
planning for individual lots.
21
INUIT OWNED LAND PARCEL E
1.8 Land Development Guidelines
Section 8.6 of the City of Iqaluit General Plan includes design
criteria and policies to guide the preparation of development
plans. Development Schemes should conform to the guidelines
included in Section 8.6. The summary below indicates how the
Development Scheme for IOL Parcel E has considered and/or
meets the requirements of Section 8.6 of the General Plan. In
some cases, the Land Development Guidelines apply to future
stages of planning on the site. The summary has been organized
by land use, including General, Residential, Commercial, Open
Space/Parks and Recreational, Roads/Transit, and Municipal
Servicing.
23
DEVELOPMENT SCHEME
1.8.1 General
Section 8.6 Land Development Guidelines
Development Scheme for IOL Parcel E
2. In proposing or reviewing a subdivision plan or Development
Scheme, City staff and Council will consider the following:
j)
The configuration and orientation of lots should respond to the
local microclimate and physical site conditions by considering:
Existing drainage patterns;
Sun exposure to maximize sunlight on residential buildings;
Steep slopes;
Prominent views;
Direction of prevailing winds;
vi.
Known or potential snow-drifting areas identified through a
snow and wind study
IOL Parcel E is generally a flat, natural tundra area located at the base
of exposed bedrock. There is a deep channelized drainage channel
that crosses the site in a north-south direction in the northwestern end
of the site. A second major drainage course is located between Masik
Court and the RCMP Building to the south of IOL Parcel E. In addition,
there are several minor culverts located along Federal Road which
transmit storm water drainage from the north side of Federal Road or
IOL Parcel E to the south.
A natural drainage area near the centre of the site is prone to standing
water. This area will be re-graded to support future development. The
construction of roadside ditches will provide improved drainage across
the site and should help to mitigate the issues of standing water. The
grading of individual blocks will take into consideration the presence of
standing water and provide for grading that promotes drainage to the
existing and proposed drainage structures.
While the Development Scheme does not directly address the potential
for major grade changes (e.g. cut and fill in rock outcrop areas), the
proposed land use plan does not preclude future major grade changes.
Further geotechnical, engineering and planning studies would be
required to ensure compliance with the General Plan.
The Development Scheme (and Plan of Subdivision) maximizes solar
orientation of lots in the proposed Residential area. Lots and buildings
should be oriented a minimum of 200 with south-facing windows.
23
INUIT OWNED LAND PARCEL E
Local roads that provide east-west access across the site are oriented
parallel with prevailing winds in an approximate NW/SE (3200-
3300/1400-1500) alignment. The Development Scheme limits the use of
"crosswind" streets. In most cases, roads are located on relatively flat,
open terrain. In the proposed Residential area, a local road runs along a
windswept hillcrest. To avoid significant drifting, roads are not proposed
in downwind hillside areas.
The location of building lots relative to roads will influence snow drift
conditions on nearby roads and neighbours. Typically, a windward
snowdrift will form and extend downwind of the building in a
"horseshoe" shaped drift. In addition, a downwind drift forms against
the building. The drifts that occur downwind of a building are the main
reason why cross-roads, or building placement upwind of a cross-road,
are discouraged in the Development Scheme. Where cross-roads are
necessary, larger buildings have been placed on the downwind side
(e.g., the Heritage Museum and Visual Arts Centre) versus on the
upwind side. Drift patterns around elevated buildings that allow wind
flow underneath differ from those that occur with slab on grade or a
building with solid skirting around the pile foundation. It is anticipated
that most development on the site will allow wind flow underneath the
building to ensure the downwind drifts are smaller in volume and form
away from the building face.
The site's natural features (i.e. level versus steep areas, uphill
versus downhill conditions, presence of roads, water, etc.) within
approximately 300 metres upwind of the development area all
influence the ability to locate snow fencing. Further assessment will be
undertaken to determine the potential use of snow fencing to benefit
future development on the site.
25
DEVELOPMENT SCHEME
k) The presence of known historical or cultural resources, subject to
the policies established in Section 5.8.
Figure B of the City of Iqaluit General Plan indicates known historical or
cultural resources within the Populated Area using a Cultural Heritage
symbol. The General Plan does not indicate the presence of historical
or cultural resources on IOL Parcel E.
Consultation with QIA's Community Lands and Resources Committee
(CLARC) did not reveal known historical or cultural resources on the
site; however, traditional and modern pedestrian and snowmobile
access corridors were noted, along with prominent views and vistas.
IOL Parcel E is also a known berry picking site with most activity
occurring on portions of the site that will remain undeveloped (e.g.
due to steep slopes, etc.).
Prior to development approval, a formal review of historical or cultural
resources on IOL Parcel E may be undertaken.
1.8.2 Residential
Section 8.6 Land Development Guidelines
Development Scheme for IOL Parcel E
2.
In proposing or reviewing a subdivision plan or Development
Scheme, City staff and Council will consider the following:
g)
For the residential component of Development Schemes:
Residential development on the site will occur in two areas: a
Residential area located in the east portion of the site and the Mixed
Use Office/Mixed Use Residential areas located on Federal Road.
All residential development on the site will be multi-unit development,
in the form of duplexes, fourplexes, sixplexes, row dwellings, stacked
row dwellings and apartments.
25
INUIT OWNED LAND PARCEL E
i.
target an average net residential density of 30 units per net
hectare. Net residential density is based on the area in exclusively
residential use, and excludes public streets, rights-of-way and all non-
residential uses;
ii.
ensure that no more than 40% of the leasable lot area is
dedicated to low density residential development;
iii.
target 7% of the leasable lot area to be affordable to house-
holds under the 50th income percentile. The target income percentile
may be amended by resolution of Council;
iv.
consider the location of low density residential areas relative to
medium and high density residential areas;
v.
target at least 5% of housing proposed in a Development
Scheme, excluding apartment dwellings, to meet the requirements of
an industry-standard energy efficiency rating program, either:
R-2000; or
EnerGuide Rating Services (minimum rating 80).
Based on testing completed for the Plan of Subdivision, average net
residential density in the Residential area is targeted at 36 units per
net hectare.
In the Mixed Use Residential area, average net residential density is
targeted at 79 units per net hectare.
In the Mixed Use Office area, average net residential density is target-
ed at 87 units per net hectare.
Residential densities will be refined in future stages of planning and
design, but will meet the average net residential density target of 30
units per net hectare.
Multi-unit built form ensures that the majority of residential
development will be medium density with less than 40% of the
leaseable lot area dedicated to low density development. Based on the
housing typologies tested, the Development Scheme anticipates that
approximately 27% of residential development will be low density.
Multi-unit built form also provides a broader range of unit sizes and
configurations to encourage a minimum of 7% affordable housing
stock.
With regard to energy efficiency, all residential development on IOL
Parcel E will meet or exceed energy efficiency ratings as defined in the
Plateau Lot Development Standard.
27
DEVELOPMENT SCHEME
1.8.3 Commercial
Section 8.6 Land Development Guidelines
Development Scheme for IOL Parcel E
2. In proposing or reviewing a subdivision plan or Development
Scheme, City staff and Council will consider the following:
d) Creating a mix of uses along Collector Roads to increase activity
and personal security for pedestrians.
The Development Scheme supports an active and secure public realm
along Collector Roads by establishing a mixed use precinct with
frontage on Federal Road.
Section 5.1.2 of the General Plan speaks to the location of parking in
Commercial areas with frontage on a Collector Road (Federal Road).
Front yard and back-out parking is not permitted in these areas. The
Development Scheme conforms to the General Plan by providing
parking in parking lots located behind or to the side of buildings,
accessible from Local Roads running perpendicular to Federal Road.
Commercial development also conforms to existing District
Commercial Zone (B2) requirements with regard to lot area and
frontage, yard requirements and building heights. This will ensure a
uniform street wall along Federal Road, providing a sense of enclosure
and safety for pedestrians.
The cultural hub, including the proposed Nunavut Heritage Museum
and Visual Arts Centre and a Hotel and Conference Centre
complements and supports commercial uses located along the Federal
Road corridor. Regular pedestrian and vehicular traffic along the
Federal Road corridor and into the site in the area of the cultural hub
will ensure an active and vibrant public realm.
27
INUIT OWNED LAND PARCEL E
1.8.4 Open Space / Parks and Recreation
Section 8.6 Land Development Guidelines
Development Scheme for IOL Parcel E
2.
In proposing or reviewing a subdivision plan or Development
Scheme, City staff and Council will consider the following:
a)
Identification of an open space network and ways to connect it
to the existing network. Design of the open space network will con-
sider:
i.
Protection of natural features such as prominent rock bluffs,
tundra, and watercourses;
ii.
Location of neighbourhood parks and public buildings and/or
services;
iii.
Where appropriate, creating connections through the develop-
ment area and linking existing open spaces to the land (Nuna) beyond
the Populated Area.
iv.
Provision of safe and convenient access points to the Walking
Trail and Snowmobile Trail systems, as designated in Figure D.
v.
Where appropriate, identification of new connections to the
Walking Trail and Snowmobile Trail systems, protected by designating
the subject lands Open Space.
The Open Space network proposed in the Development Scheme
respects the topography of the site. In the northwest area of the site,
steep slopes are designated Open Space to protect existing natural
features and maintain connections from the site to the land (Nuna).
Protection of this area under an Open Space land use designation also
allows for continued and enhanced cultural uses including berry
picking and outdoor cultural programming.
A large Parks and Recreation area adjacent to the Open Space area
provides an opportunity for the development of a programmed park
space including amenities such as an outdoor skating rink, soccer
pitch or a baseball diamond.
The Parks and Recreation area extends as a linear space along Carney
Creek, providing direct connections to and through the site for
pedestrians and snowmobiles within the 30.5 metre watercourse
setback from the creek centreline.
b)
The size and location of neighbourhood parks are subject to
the policies contained in Section 5.7
Section 5.7.5 of the General Plan speaks to parkland ratio for new
residential development areas. The proposed Residential area is
well-served by parkland in the Development Scheme. In addition,
residential uses within Mixed Use areas have direct access to
parkland.
29
DEVELOPMENT SCHEME
The Development Scheme includes 1,000 m2 (0.1 ha) of tot lots,
meeting the General Plan requirement of 100 m2 for every 30 house-
holds. The "tot lot" is located in the northeast portion of the site and
is directly accessible from surrounding residential uses without cross-
ing an Arterial or Collector Road.
In addition to tot lots, a large Parks and Recreation area is shown in
the northwest area of the site, adjacent to the channelized creek and
Open Space area. This Parks and Recreation area is 3,300 m2 (0.33
ha) and is within a 750 metre walking circle of all residential uses on
IOL Parcel E, in compliance with Section 5.7.5 b) of the General Plan.
c)
All public spaces should be designed to ensure personal secu-
rity by preserving unobstructed sight lines for persons passing through,
and visibility of such spaces to people in adjacent buildings or other
public spaces.
Public spaces within the Development Scheme have been located in
areas that maximize sightlines and views across the site.
The proposed tot lot is sited within the residential area to ensure both
accessibility and natural surveillance.
The Parks and Recreation area is located along an existing snowmobile
trail. This trail provides direct sight lines from the lands north of the
IOL parcel to the sea.
The Development Scheme identifies land use relationships that sup-
port the development of secure public spaces, following CPTED prin-
ciples (see Section 4.9.5, below). Detailed design of all public spaces
within the IOL parcel will be undertaken in future stages of planning.
Evaluation of public space design will occur through the City's devel-
opment approvals process in accordance with Section 8.7.5 of the
General Plan.
29
INUIT OWNED LAND PARCEL E
e)
Consultation with the community and various levels of govern-
ment to determine the need for new community or public land. Public
uses should occupy prominent locations with good access and good
visibility from the surrounding neighbourhood or proposed
neighbourhood.
The Development Scheme and Plan of Subdivision process included
initial stakeholder and community consultation. Meetings with QIA's
Community Land and Resources Committee (CLARC) were critical to
the development of early land use concepts. Feedback from Elders and
the public received during meetings in February 2014 helped shape the
final Development Scheme.
Additional community and government consultation will take place
throughout the development process. A Development Scheme(s) for
other lands within the Federal Road Special Policy Overlay will require
the City of Iqaluit to undertake broader public consultation, which
may include IOL Parcel E as a component (potentially in partnership
with QIA/QC. Consultation specific to IOL Parcel E will be particularly
focused on uses within the cultural hub, as they require partnership to
support implementation.
Public uses, including the proposed uses within the cultural hub, Open
Space, and Parks and Recreation uses are centrally located within the
site, with direct access for pedestrians and snowmobiles along a
dedicated trail system. Vehicular access is provided directly from
Federal Road.
h)
Respect watercourse setback requirements as established in
Sections 5.6.8 and 5.6.9.
Industrial and Commercial land uses adjacent to the existing
channelized creek (Carney Creek) are setback 30.5 metres from the
centreline of the creek, as per Section 5.6.8 of the General Plan.
Under Section 5.6.9, an exception to the standard setback may be
made based on the findings of further geotechnical study. Through
the development process, the creek may be further studied to
determine if a reduction in setback is appropriate.
31
DEVELOPMENT SCHEME
1.8.5 Roads and Transit
Section 8.6 Land Development Guidelines
Development Scheme for IOL Parcel E
2.
In proposing or reviewing a subdivision plan or Development
Scheme, City staff and Council will consider the following:
i)
Provide Arterial, Collector and Local Roads in accordance with
the policies in Section 6.4 and a hierarchy of roads that connects to
the existing road network.
The site's internal road network comprises Local Roads. Local Roads
include two 4.25 metre lanes and a 1.0 metre shoulder, as per the
typical cross section shown in Section 6.4.3 of the General Plan.
However, as per Section 6.4.3.3 of the General Plan, all Local Roads
within the site will be developed with an alternative 18 metre right-of-
way. Local Roads will be constructed from local gravel and in general
will be elevated above the existing ground. Drainage works, ditches
and culverts associated with the road network will generally be located
within the road allowance within drainage easements.
The preferable maximum grade of a Local Road is 8% with an absolute
maximum grade of 10%. The road network within IOL Parcel E will meet
these grade requirements. The lands within the Federal Road Special
Policy Overlay, but outside IOL Parcel E, feature an existing road network,
road allowances and snowmobile routes. The site's Federal Road frontage
provides direct connection from the internal Local Road network to a
Collector Road.
Section 6.4.4 of the General Plan protects for the development of a
Bypass Road to alleviate traffic congestion along Federal Road in the
Core Area. The Development Scheme considered the Iqaluit Core Area
Bypass Road Preliminary Design Report (2007) and tested the
configuration of the Bypass Road shown in Figure D of the General
Plan. The Preliminary Design Report indicates a conceptual Bypass
Road alignment through IOL Parcel E and identifies the key constraints
to road development.
31
INUIT OWNED LAND PARCEL E
l)
Where transit service is proposed, provide safe and convenient
access to bus stops or waiting areas and ensure that they are
appropriately sheltered.
In order to achieve the highest and best use of lands within IOL Parcel
E, the Development Scheme considers an alternate Bypass Road
alignment along the proposed Street A, as shown in the Plan of
Subdivision and Figure 14 on the following page. The preferred
alignment of the Bypass Road through IOL Parcel E should be
determined by the City of Iqaluit and QIA/QC through ongoing
discussion and a future development agreement. A final preferred
alignment may require an amendment to Section 6.4.4 of the City of
Iqaluit General Plan.
Transit service through the site will be determined in a future stage of
the planning process. Right-of-way widths and turning radii shown in
the Development Scheme and Plan of Subdivision comply with the City
of Iqaluit General Plan (Section 6.4) and road design practices in order
to enable future transit planning.
Transit service along the Federal Road corridor will directly serve the
IOL parcel. The specific location and design of bus stops or waiting
areas will also be determined in a future stage of the planning process;
however, in general they should be located at key points along the
Federal Road mixed use frontage.
33
DEVELOPMENT SCHEME
Existing Bypass Road Alignment
Alternative Bypass Road Alignment
Conflicts
Figure 11: Existing and Alternative Bypass Road Alignments.
33
INUIT OWNED LAND PARCEL E
1.8.6 Municipal Services
Section 8.6 Land Development Guidelines
Development Scheme for IOL Parcel E
2.
In proposing or reviewing a subdivision plan or Development
Scheme, City staff and Council will consider the following:
f)
New land for municipal servicing infrastructure, such as a sew-
age lift station, water booster station or reheat stations.
The servicing plans for IOL Parcel E will follow the City's Municipal
Servicing Guidelines dated March 2004.
The requirement of a sewage lift station has been identified for the
servicing of lands within the Federal Road Special Policy Overlay which
include the portion of the IOL Parcel E to be serviced. The preliminary
servicing plan prepared proposes a sewage lift station be located in
the southwest area of the Federal Road Special Policy Overlay.
m)
The feasibility and cost of installing power cables and infra-
structure underground.
The existing power and communication distribution routing through IOL
Parcel E will require relocation prior to development of the site.
Installation of underground electrical servicing is intended if feasible
and will be further explored with Qulliq Energy Corporation and
Northwestel prior to future development applications.
Preliminary cost estimates for underground water and sanitary services
internal to the site will be established in consultation with the City prior
to future development applications.
Alternative infrastructure options may also be explored for IOL Parcel
E, including alternative energy, water and wastewater solutions to
address specific lot development criteria listed in Section 8.7 of the
General Plan.
ANNEX C - FUTURE DEVELOPMENT
AREA 'B' DEVELOPMENT
SCHEME
AREA B Development Scheme
2015
Development Scheme for Iqaluit's Next Neighbourhood
TABLE OF CONTENTS
1.0 INTRODUCTION .............................................................................................. 2
2.0 OVERVIEW OF PLANNING PROCESS ........................................................ 4
3.0 SUSTAINABLE COMMUNITY PLAN (2014)............................................. 5
4.0 LAND USE POLICIES AND DESIGN PRINCIPLES ..................................... 6
4.0
LAND USE POLICIES ........................................................................................................................................7
4.1
LAND USE DESIGN PRINCIPLES .................................................................................................................... 10
5.0 DEVELOPMENT POLICIES ......................................................................... 12
5.0
TRANSPORTATION POLICIES ........................................................................................................................ 12
5.1
SERVICING & DRAINAGE POLICIES............................................................................................................... 17
5.2
PHASING OF DEVELOPMENT ......................................................................................................................... 17
5.3
LOT DEVELOPMENT STANDARDS .................................................................................................................. 19
5.4
AFFORDABLE HOUSING ................................................................................................................................ 19
5.5
RADAR SITE INFLUENCE AREAS .................................................................................................................... 20
6.0 DEMONSTRATION PLAN ........................................................................... 21
7.0 MONITORING ........................................................................................... 22
SCHEDULE A - LAND USE CONCEPT PLAN .................................................... 23
SCHEDULE B - SERVICING CONCEPT PLAN .................................................. 24
SCHEDULE C - PHASING OF DEVELOPMENT ............................................... 25
SCHEDULE D - TRANSPORTATION PLAN ..................................................... 26
Development Scheme for Iqaluit's Next Neighbourhood
page 2
1.0 INTRODUCTION
This Development Scheme is a Neighbourhood Plan which was approved by the City of Iqaluit
Council. Through this plan, the City of Iqaluit will increase the supply of serviceable land and
opportunities for growth. The Development Scheme is rooted in a community vision based on the long-
term directions established in the City of Iqaluit General Plan, the Iqaluit Sustainable Community Plan
and the direction provided to the City by Iqalummiut throughout the consultation process. The purpose
of a Development Scheme is to guide land uses for the neighbourhood and establish policies to ensure
appropriate development. Anticipated build-out of this neighbourhood spans over a 10-year horizon
once Phase 1 lots are disposed.
The requirements for Development Schemes are outlined in the Nunavut Planning Act and in Policy 1
of Section 8.4 of the 2010 General Plan. The subject lands are identified as "Future Development Area
B" in the 2010 Iqaluit General Plan (By-law 703).
Planning Context
Iqaluit is experiencing rapid demographic growth and an acute housing shortage. There is a high
demand for public housing, a low vacancy rate for apartments and a strong demand for vacant low
density lots, as demonstrated at the time of lot disposal. Iqalummiut households are diverse in size,
income and demographic composition.
Construction costs are high and servicing new neighbourhoods is becoming increasingly costly. Access
to the private housing market is increasingly becoming out of reach for many Iqalummiut.
Land development is constrained by a challenging terrain. There is limited land suitable for
development in Iqaluit. The land selected for Iqaluit's next neighbourhood is located along Road To
Nowhere, directly east of the Lake Subdivision, north of Niaqunngusiariaq Road, Toonik Pond and
AWG Arena, and west of the Niaqunnguk River. The greater area provides recreational opportunities
to Iqalummiut, including snowmobiling, skiing and skating in the winter and spring months and
swimming in Niaqunnguk River in the summer.
The neighbourhood is designed to respond to the natural landscape. The area selected for the
neighbourhood is shaped like a bowl, and features significant drainage and snowdrifting. The
Vision Statement
Iqaluit's next neighbourhood has a positive neighbourhood identity and is an integral part of our
community. The neighbourhood design is inclusive - it supports a range of land uses and housing
options. The neighbourhood supports the health and well-being of residents by providing spaces for
traditional, cultural and recreational activities and by maintaining access to the land.
Development Scheme for Iqaluit's Next Neighbourhood
page 3
neighbourhood's design retains the majority of existing drainage corridors and ensures that
development is not proposed in areas where snowdrifting cannot be mitigated. Roads are designed in
response to the design of piped services, which require positive drainage to function. The main north-
south road is proposed at an angle to ensure that roads are not too steep.
The Development Scheme Highlights
The Development Scheme represents an important part of Iqaluit's growth for the next ten years. With
the ten-year housing need for Iqaluit recently estimated at 1,050 to 1,270 units, the 490 units estimated
for this new neighbourhood represent approximately 42% of the required supply. The new
neighbourhood also reserves land for commercial and institutional uses, exceeding the estimated ten-
year requirement of 1.8 hectares.
The new neighbourhood is proposed to contain a mix of uses and residential densities. Housing types
will range from low-density to high-density, in a variety of forms and lot sizes. This range of housing
options is offered to reflect Iqaluit's diversity, allowing opportunities for different types of households
to establish in the new neighbourhood. Approximately 12 waterfront lots are proposed, which will
contain single-detached dwellings on large lots. Approximately 71 additional low-density units will be
located throughout the neighbourhood. Medium-density housing units such as townhouses and
triplexes will also be dispersed throughout the area, totalling approximately 259 units. A portion of the
lands north of Road To Nowhere will be reserved for high-density housing types such as apartments
and stacked row dwellings, with approximately 148 units.
Additionally, a new school site is proposed at the north of the new neighbourhood, on the south side of
Road To Nowhere. Two areas will also be reserved for commercial development to the east of the
school and near Toonik Pond. These will provide business and shopping opportunities for residents.
The current uses of the land were considered through the preparation of the neighbourhood design.
Through its Land Use Concept Plan, the Development Scheme provides new gathering places and
walking trails for the community and supports the enjoyment of existing green spaces, outdoor
activities, and snowmobile trails. The new neighbourhood will include two municipal playgrounds,
along with recreational spaces at the school site.
The Land Use Concept Plan is attached as Schedule A and describes land uses, environmental
protection areas, open space areas, watercourse setbacks, road and trail networks, and phasing of
development. The Servicing Concept Plan (Schedule B) illustrates the location of the water and sewer
servicing infrastructure and distribution network. A Phasing Plan is included as Schedule C, which
illustrates the general timeline for development. A Transportation Plan, including roads, Walking
Trails, and Snowmobile Trails, is included as Schedule D.
Development Scheme for Iqaluit's Next Neighbourhood
page 4
2.0 OVERVIEW OF PLANNING PROCESS
The key steps undertaken in the planning process are outlined below:
Community Engagement #1 - Selecting a New Development Area
June 18-19, 2013
Development Area Selection Report August, 2013
Council motion to select Development Area September 10, 2013
Community Engagement #2 - Issues, Concerns, Needs, Past
Practices, & Design Principles
October 8-11, 2013
Community Engagement #3 - Alternative Concept Plans November 25-27, 2013
Community Engagement #4 - Draft Development Scheme
(Council Workshop, Open House and consultation at Northmart)
June 2014
Development Scheme to City of Iqaluit Council April 2015
Community members participated in a consultation session to share ideas about the features and design
of the new neighbourhood. Many of the suggestions were drawn from the successes and challenges
experienced in Iqaluit's most recently developed neighbourhood, the Plateau Subdivision.
There have been four Community Engagement events, with approximately 20-40 members of the
community in attendance at each session. The October and November 2013 sessions included
Roundtable sessions with community stakeholders, each with approximately 10-15 invitees.
Additionally, in June 2014, City Staff consulted with approximately 200 Iqalummiut at Northmart and
held an Open House the same month. Council workshops were held throughout the process. The design
of the neighbourhood incorporates many of the suggestions heard at these public events, which
highlighted a desire for sustainable growth that expands housing options and retains existing qualities
of the land. In addition, the City consulted with agencies on an as-needed basis.
The new neighbourhood incorporates several lessons learned and suggestions, including:
- The existing Snowmobile Trail network, connecting Iqaluit to Pangnirtung and Tarr Inlet
shall be retained;
- Some large lots will be included along the waterfront to increase the diversity of housing
options and preserve visual sightlines to the waterbody;
- Commercial / mixed-use development will be included in the neighbourhood design;
- Land will be reserved for a new school;
- Larger playground spaces will be provided to allow for a wider range of recreational
activities and increase the amount of open space in the neighbourhood;
Development Scheme for Iqaluit's Next Neighbourhood
page 5
- An 0.8-metre gap will be required beneath houses to prevent snow drifting (exceptions may be
granted in certain cases);
- Solar orientation will be encouraged to promote passive heating and light from the sun, where
feasible;
- Separated pedestrian walkways will be included on some streets to improve connections and
encourage walking;
- Roads will be paved to improve travel conditions and reduce damage to vehicles; and
- Some streets will accommodate on-street parking to provide visitor parking in the
neighbourhood.
This Development Scheme is the first step in the development process for the new neighbourhood.
After receiving Council approval, detailed engineering designs can begin, with lot disposal anticipated
for 2016 or 2017. The City will also carry out consultations with community members to name the new
neighbourhood and its streets in the future. Once the new neighbourhood name is found, this Plan shall
be updated through a resolution from Council.
3.0 SUSTAINABLE COMMUNITY PLAN (2014)
In January 2014, Iqaluit City Council adopted the Iqaluit Sustainable Community Plan. The plan is an
umbrella document for the City of Iqaluit and is intended to guide City activities and plans. The
Sustainable Community Plan contains many actions to move the community towards a better long-term
future by reinforcing the three central relationships: relationship to the environment, relationship to
social and family wellbeing, and relationship to a productive society. The Action Plan (Part 2) specifies
that the City of Iqaluit will use the Plan to "guide decision-making and to incorporate sustainability in
the work of the municipality."
There are links to 7 Municipal Goals in the Sustainable Community Plan that are addressed by
implementing Municipal Actions in this Development Scheme.
The Development Scheme actively responds to these Municipal Goals:
- Enhance energy guidelines for future development
- Increase available housing
- Promote affordable home ownership
The Development Scheme addresses aspects of these Municipal Goals:
- A beautiful community
Development Scheme for Iqaluit's Next Neighbourhood
page 6
- Improve outdoor safety
- Ensure the community is physically accessible to everyone
- Positive neighbourhood identity
The Development Scheme is a Neighbourhood Plan. The design aspires to support both the
community's traditional, cultural and recreational requirements and its needs for more serviced land to
support demographic growth. The Scheme intentionally contributes to the community's long-term
vision to create a new neighbourhood in Iqaluit that is safe, caring, connected, and respectful of our
land, each other and ourselves.
4.0 LAND USE POLICIES AND DESIGN PRINCIPLES
The following policies will apply to the lands identified on the Land Use Concept Plan in Schedule A.
Land uses identified on the Land Use Concept Plan are conceptual and may be changed without an
amendment to this Plan, provided the proposed use is consistent with the land use designation on
Figure B of the General Plan. Changes in land use may require an amendment to the Zoning By-law.
Table 1: Distribution of Land Uses
Development Scheme for Iqaluit's Next Neighbourhood
page 7
The distribution of land uses is summarized in Table 1. Table 1 illustrates that a total of 80% of the
land is dedicated for residential development and 20% is for non-residential or mixed-use development.
Table 1 does not include playgrounds, and additionally excludes water pumping and sewage lift
stations.
4.1
Land Use Policies
4.1.1 Open Space, Parks & Picnic Area
The Open Space designation protects land from development and
forms a greenspace network that connects to adjacent
neighbourhoods. These spaces create environmental value by
including setbacks from waterbodies, and by accommodating
drainage courses and snowdrift zones. These spaces also provide
recreational opportunities, including space for formal
Snowmobile Trails and Walking Trails. These trails are shown
conceptually on Schedule A, including protection of major
Snowmobile Trails leading to Pangnirtung and Tarr Inlet.
The Land Use Concept Plan includes two municipal playgrounds
and a recreational play area on the proposed school site:
A large playground approximately 1,300 m2 in size will be centrally located in the middle of
the neighbourhood. This space could include play structures and a hard surface for either
basketball and/or ball hockey. Cultural representations in playground design will be
considered.
A second playground at the south end will be located next to Toonik Pond and connected to
Walking Trails.
A recreational area, located at the school site, will complement the two municipal playgrounds.
Similar to other school sites in Iqaluit, it is anticipated that the school site will include play
structures.
A picnic area with associated parking is proposed on the east side of Toonik Pond at the south end of
the new neighbourhood. The picnic area is located near existing development and facilities to ensure
accessibility for Elders and people with disabilities. The parking could be used for those wanting to
picnic or swim, or to use the playground proposed beside the pond. An additional parking lot is
proposed along Road to Nowhere, providing access to the Walking Trail along Niaqunnguk River. The
Open Area Zone (OR) is proposed for these lands.
Development Scheme for Iqaluit's Next Neighbourhood
page 8
4.1.2 Institutional
The Institutional designation is reserved for buildings that provide a community service. The range of
uses will include educational, recreational, servicing infrastructure, government services, daycare,
place of worship, arts studio and greenhouses. Institutional lots are located on relatively large and flat
sites, close to primary roads or intersections, and with good visibility from the surrounding
neighbourhood pursuant to Section 8.6 of the General Plan.
A school is anticipated for the large lot along the Road To
Nowhere with additional land for another use. A second lot
is located at the south end of the neighbourhood, which will
enjoy a prime location next to Toonik Pond and a
playground. Two small lots are dedicated for a new water
booster and reheat station and sewage lift station which are
needed to provide piped services to the new
neighbourhood. The Public / Institutional Zone (P) is
proposed for lands under this designation. An exception
will be placed on this zone to prohibit uses that do not meet
the intent of the designation (e.g. government offices).
The City will explore the potential for the provision of a ski chalet or cabin in the neighbourhood to
support this recreational activity. The location of this facility will be determined through additional
consultation. An amendment to this Plan will not be required to allow this facility.
4.1.3 Commercial
The Commercial designation is intended for commercial
activities. Residential uses that are located above the
ground floor of a building may also be permitted in this
designation. There are two areas identified for
commercial development, one area along the Road To
Nowhere and the other east of Toonik Pond. A
Neighbourhood Business Exception Zone (B3[x]) is
proposed for lands under this designation. The
Exception Zone would provide for additional permitted
uses that are considered compatible with the
neighbourhood such as a retail store, educational
facility, and business services and conditional uses such
as a greenhouse. The Exception Zone may restrict the
floor area of certain uses.
Development Scheme for Iqaluit's Next Neighbourhood
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4.1.4 Residential - Low Density
The Residential - Low Density designation permits low-density
residential uses such as single-detached, semi-detached, and duplex
dwellings. These lands are distributed throughout the development
area to allow a small supply in each phase of development. The Low
Density Residential Zone - Full Services (R1) is proposed for lands
under this designation.
4.1.5 Residential - Waterfront
The Residential - Waterfront designation is intended for single-
detached dwellings on relatively large lots that are strategically
located to allow more visibility from the surrounding area to the
waterbody. Buildings will be restricted to two storeys in height. A
Low Density Residential Zone - Full Services, Special Exception
Zone 2 (R1[x]) is proposed for lands under this designation. The
Special Exception Zone will restrict uses to single-detached
dwellings and regulate minimum lot areas, lot frontages, and side
yard setbacks to ensure that the intent of the designation is achieved.
4.1.6 Residential - Medium Density
The Residential - Medium Density designation permits ground-oriented multi-family housing forms
such as fourplexes, sixplexes, row dwellings, and stacked row dwellings, but does not include
apartment type units. The Medium Density Residential Zone (R2) is
proposed for lands under this designation. The easternmost block of
the land within this designation is associated with a "Potential
Expansion" area. These lands are considered marginal for development
due to rock outcrops which may create cost, road slope and servicing
constraints. As part of the criteria for lot disposal, applicants will be
required to assess the feasibility of expanding the lot into the "Potential
Expansion" area. In this case, the land may also be considered a
Medium Density Cluster.
4.1.7 Residential - Medium Density Cluster
The Residential - Medium Density Cluster designation is intended
for clustered development of medium-density ground-oriented
building forms such as fourplexes, sixplexes, row dwellings, and
stacked row dwellings. These Clusters are located in areas where the
depth of the lot and access to the lot make this the most efficient form
of development. The Residential Cluster Zone (RC) is proposed for
lands under this designation.
Development Scheme for Iqaluit's Next Neighbourhood
page 10
4.1.8 Residential - High Density
The Residential - High Density designation permits
apartment dwellings, but may also include medium density
forms of development such as sixplexes, eightplexes, row
dwellings and stacked row dwellings. The High Density
Residential Zone (R3) is proposed for lands under this
designation. The block of land within this designation at
the northwest of the development area is associated with a
"Potential Expansion" area. These lands are considered
marginal for development due to rock outcrops which may
create cost, road slope and servicing constraints. As part of
the criteria for lot disposal, applicants will be required to
assess the feasibility of expanding the lot into the
"Potential Expansion" area.
4.2
Land Use Design Principles
The Design Principles used to guide the preparation of Land Use Concept Plan were drawn from
previous planning initiatives (primarily the Sustainable Community Plan and General Plan), lessons
learned from development of the Plateau Subdivision, an analysis of development constraints and
environmental risks, and through the ideas, concerns and aspirations expressed by Iqalummiut, City
Council, City Staff, organizations and businesses.
Table 2 evaluates the performance of the Land Use Concept Plan against each Design Principle.
Table 2: Performance of Land Use Concept Plan with Design Principles
Design Principle
Land Use Concept Plan
Safety
1
Ensure appropriate setbacks from environmental
risks:
Snowdrift areas where snowfencing would not be
effective.
Major drainage courses.
〉 Development was not proposed in areas where the
snowdrifting risk could not be mitigated by a future
snowfence.
〉 A 20-metre easement is provided for the major east-west
drainage course through the central part of the
development area.
2
Provide a minimum of two access roads to new
neighbourhood to ensure access for emergency
services
〉
Two access points to the development area are provided,
linking Niaqunngusiariaq Road and Road To Nowhere.
Environment
3
Protect waterbodies with a 30-metre open space
setback to maintain community access, maintain
setbacks from homes, and protect water quality.
〉
A 30-metre setback is provided from water bodies.
4
Design to respond to wind and snow conditions.
〉
A Wind and Snow Assessment identified areas of
Development Scheme for Iqaluit's Next Neighbourhood
page 11
Design Principle
Land Use Concept Plan
anticipated heavy snowdrifting that cannot be mitigated by
snowfencing - these areas are excluded from the
development area.
5
Create lots that help achieve orientation to the
sun.
〉
Due to the terrain, the design of the road network was
driven primarily by the slope of the land and servicing
constraints, not the solar orientation. Some lots are
oriented to the south, although others are not.
〉
The use of Clusters will provide more flexibility to achieve
solar orientation where appropriate and feasible.
6
Design to respond to natural drainage.
〉
The neighbourhood design responds to the topography of
the area's overall "bowl" shape. Drainage easements are
included to accommodate the natural drainage from north of
the Lake Subdivision. A 20-metre easement is provided for
the major east-west drainage course, with at least 6
other breaks in the design to allow for proper drainage.
7
Protect the quality of water running into
Niaqunnguk River.
〉
The setbacks from waterbodies will help protect water
quality in Niaqunnguk River.
Community Design
8
Target the accommodation of approximately 420
new homes which represents the projected 10-
year need for new residential development in the
City after accounting for vacant lots, Core Area
redevelopment, and Inuit-Owned Lands
development.
〉
Development potential is estimated at approximately 490
units.
9
Target a minimum average residential density of
40 units/ha.
〉
The average residential density is estimated at 46 units/ha.
10
Provide a choice of dwelling types to reflect
diversity of needs and affordability.
〉
The neighbourhood will have a mix of housing types,
including single-detached, row dwellings, and apartment
units.
11
Provide land for community uses, commercial
uses, and open spaces that are well-connected to
the residential uses.
〉
20% of developable lot area is reserved for non-residential
uses, commercial, an area for a new school, and an
Institutional area in the southern part of the neighbourhood.
12
Reserve the following development sites (ie.
school site and recreation site) for community
uses:
Large and relatively flat sites
Central locations
Good views.
〉
An appropriate site (large, flat, central, elevated) is
reserved for a school.
〉
An additional Institutional area is located at the south end
of the development area, adjacent to an open space and
nearby the existing institutional node Niaqunngusiariaq Road.
13
Target a range of housing densities in each Phase
of development.
〉
Phasing allows flexibility and includes low- and medium-
density development lots in each phase. High-density
development is planned in Phase 1 and "Future Phasing." The
lands designated high-density in "Future Phasing" along Road
To Nowhere can be brought online at any time
to respond to demand.
14
Achieve a good transition between low, medium
and high density residential uses.
〉
High-density housing is located along the Road To
Nowhere, while low-density housing is generally located at
the southern portion of the development area. In all
cases, high-density housing backs onto Open Space.
Development Scheme for Iqaluit's Next Neighbourhood
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Design Principle
Land Use Concept Plan
〉
Medium-density housing is distributed consistently
throughout the development area.
15
Consider the snowdrifting impacts of high-density
lots on downwind lots.
〉
High-density lots are located north of Road To Nowhere
and at a high elevation which will serve to mitigate
snowdrifting impacts.
16
Lots closest to the waterbody should be reserved
for residential and recreational uses.
〉
Lots near the waterbody are reserved for large-lot
residential uses and community uses.
〉
The large central playground, Walking Trails and picnic
area are located around the waterbody.
17
Front 30% of lots should not have a slope
exceeding 10%.
〉
Lots are configured to meet this principle.
Neighbourhood Identity
18
Create focal points (eg. gathering place,
community use, landmark) for the new
neighbourhood.
〉
The prominent school site, commercial uses, playgrounds,
and community use next to Toonik Pond will create focal
points in the neighbourhood. Cultural representations in
playground design will be considered.
19
Provide recreational opportunities for residents,
such as a playground, outdoor rink, or court.
〉
2 playgrounds (centrally located playground and Toonik
Pond playground), Walking Trails, picnic area around Toonik
Pond, and a recreational area associated with the school site
are proposed to provide recreational
opportunities.
5.0 DEVELOPMENT POLICIES
5.1
Transportation Policies
5.1.1 Roads
Roads will be classified in accordance with the road classification policies in the General Plan. The
Road To Nowhere is currently designated as a Collector Road on Figure D of the General Plan and
terminates at the approximate location where the north-south road intersects with the Road To
Nowhere. This Development Scheme extends the Collector Road designation for Road To Nowhere to
the eastern edge of the community. The Collector Road cross-sections are illustrated in Figures 1 and 2.
Development Scheme for Iqaluit's Next Neighbourhood
page 13
Figures 1 & 2: Cross-sections for Road To Nowhere (Collector Road)
For the main north-south connector road through the neighbourhood, the proposed road cross-section is
illustrated below. The road includes a 20-metre-wide cross-section and accommodates parallel on-
street parking on the side of the road with the utilidor, and a pedestrian walkway on the other side.
Parking is permitted behind or in front of the utilidor, but not beside (represented with an "X" in the
cross-sections). The cross-section allows sufficient space for travelling vehicles, parked vehicles,
pedestrians, drainage, and utilities to coexist safely. The pedestrian walkways will be reserved for the
exclusive use of pedestrians, as established in Policy 3(c) in Section 6.2 of the General Plan. These
walkways will link the institutional node along Niaqunngusiariaq Road to the south with the school and
high-density residential uses along the Road To Nowhere in the north. Cross-sections for the north-
south road are illustrated in Figures 3 and 4.
Figures 3 & 4: Cross-sections for north-south road
Development Scheme for Iqaluit's Next Neighbourhood
page 14
Remaining Local Roads will be designed to a minimum 20-metre road allowance and will not
accommodate an increased gravel bed width for on-street parking or a separated pedestrian walkway.
Minimum 1-metre-wide shoulders will be provided on each side of the vehicle lanes.
Figures 5 & 6: Cross-sections for Local Roads
Roads will be paved in order to eliminate the raising of dust and reduce road maintenance costs for the
City. The detailed design process for roads will include consultation with the Nunavut Disabilities
Society and the City of Iqaluit Accessibility Committee. Road paving will be included in the
development costs.
5.1.2 Walking Trails
Proposed Walking Trails are shown on the Land Use Concept Plan.
These trails are distinct from Snowmobile Trails, and measures will be
introduced to discourage snowmobile use and minimize conflicts (eg.
posts, trail markers, boulders).
A Walking Trail is proposed to link the school site with the main
north-south road. This Trail will be developed in consultation with the
Iqaluit District Education Authority regarding the location and design
of the Trail. A recreational Walking Trail is also proposed around the
waterbody and to link Road To Nowhere to Niaqunnguk River. A
Development Scheme for Iqaluit's Next Neighbourhood
page 15
crossing bridge may be considered to complete the loop at the eastern end of the waterbody, which
must be designed to avoid conflict with the Snowmobile Trail. The Trail is also proposed to extend to
the popular swimming spot on the Niaqunnguk River.
A Walking Trail is also proposed around Toonik Pond, connecting to the proposed Picnic Area and
providing off-road access to the proposed playground and the existing residential area to the west. This
Trail will also function as a pedestrian short-cut between the neighbourhood and the Core Area.
5.1.3 Snowmobile Trails
The Snowmobile Trail links are shown on the Land Use Concept Plan in Schedule D. It is intended
that an east-west route traverse through the neighbourhood along its existing path, which facilitates
access to the land. Conflicts between snowmobiles and
pedestrians will be minimized. The two snowmobile
crossings across roads will be properly marked with
signage to improve their safety and to signal to municipal
workers to avoid piling snow in these areas. Appropriate
grading to access the road bed at crossing points will be
implemented to ensure good visibility and reduce
snowmobile speeds. As the snowmobile road crossings are
located in the same easement as the major east-west
drainage course, the grading must be designed in a way that
does not impede drainage.
Table 3 shows the performance of the Transportation Concept Plan with regards to key design
principles.
Development Scheme for Iqaluit's Next Neighbourhood
page 16
Table 3: Performance of Transportation Concept Plan with Design Principles
Design Principle
Transportation Concept Plan
1
Provide safe movement for snowmobiles and
consider primary snowmobiles routes (ie. Tarr Inlet
& Pangnirtung Trails) that traverse the development
area.
〉
Two snowmobile routes are being retained through the
development area.
〉
Ramps for road crossings and signage will be
implemented to ensure safe travel.
2
Provide safe movement for pedestrians.
〉
Pedestrian walkways are to be included along the
development area's two primary roadways: Road To
Nowhere and the main north-south access road. These
walkways provide safe routes for all users, including
community members with disabilities.
3
Integrate neighbourhood movement networks (road,
Snowmobile Trail, Walking Trail) with community-
wide networks.
〉
The road network connects to Road To Nowhere in the
north and Niaqunngusiariaq Road in the south.
〉
The Snowmobile Trails link to existing trails to the east
and west.
〉
Walking Trails link to roads that are intended to have
defined pedestrian walkways.
4
Ensure road slopes generally do not exceed 8%, to a
maximum of 10%. Roads with slopes of 10% should
be no longer than 200 m in length.
〉
The design meets the maximum road slope design
principle.
5
Align main roads in the direction of the prevailing
winds, where possible, to reduce snowdrifting.
〉
The design of the road network was driven primarily by
the slope of the land and servicing constraints, not to
achieve alignment with prevailing wind direction. Some
sections of road are aligned but the majority are not.
Proposed snow fencing will help to mitigate snow
drifting.
6
Align roads to follow natural drainage patterns,
where possible.
〉
Roads follow natural drainage patterns, where feasible.
Drainage from the north can be ditched into the north-
south connector to the small waterbody. East-west
drainage runs within a 20-metre easement, as road
connections are not practical in this location.
Development Scheme for Iqaluit's Next Neighbourhood
page 17
5.2
Servicing & Drainage Policies
5.2.1 Servicing
The development will be serviced with a piped water and sewer utilidor system, similar to other parts
of the City. A new water pressure regulation and reheat station will be required to service the
development, in addition to a new sewage lift station. The anticipated location of this infrastructure and
the piped system with anticipated access vault locations is identified on the Servicing Concept Plan in
Schedule B. The water station and sewage lift station are identified on the Land Use Concept Plan in
the Institutional land use designation. To improve fire safety for the development area, each utilidor
access vault will be equipped with a fire hydrant.
5.2.2 Drainage
Existing spring run-off drainage courses have been integrated into road design and alignment where
possible to avoid areas to be developed. The main east-west drainage course has been retained in its
original alignment and will be accommodated within a 20-metre drainage easement that can also
accommodate a Snowmobile Trail during the winter months. There are 6 other drainage easements
identified on the Land Use Concept Plan to facilitate drainage. These easements will be designed with a
minimum width of 8 metres to allow proper drainage during the Spring and Summer months. Detailed
drainage plans will be prepared during detailed engineering design for each Phase of development.
5.3
Phasing of Development
The Phasing of Development is shown in Schedule C. A phased approach is proposed for the
development area to ensure manageable costs to the City and to deliver land in accordance with
demand. There are three phases of development proposed: Phase 1, Phase 2, and Future Phases. Since
the water station and sewage lift station must be installed in Phase 1, the location of Phase 1 recognizes
and takes advantage of the location of this major infrastructure.
Phase 1 provides a mix of all land uses including different densities of residential development, the
school site, and commercial areas. Depending on the size of the school, a portion of the Institutional
land in Phase 1 may also accommodate a second institutional use. If demand for residential land is
high, the "Future Phasing" lands further along the Road To Nowhere could be included in Phase 1.
This opportunity should be explored during the Phase 1 Proposal Call, since a greater disposal of lots in
Phase 1 will reduce interest costs on the major infrastructure needed to service the entire development
area.
Phase 2 represents the addition of a new servicing loop that avoids constructing any interim
infrastructure that would be redundant at the time of build-out. If demand is high for low-density
residential land, the cul-de-sac road identified as "Future Phases" could be constructed during Phase 2.
Development Scheme for Iqaluit's Next Neighbourhood
page 18
Future Phasing represents the remaining lands that may be added to either Phase 1 or Phase 2
development depending on the demand for land, or as a stand-alone phase (i.e. Phase 3). Included in
Future Phasing is the southern portion of the neighbourhood.
Two areas are reserved for "Potential Expansion." These are lands that are marginal for development
due to rock outcrops which may create cost and servicing constraints.
Table 4 summarizes the extent of development by land use for each phase.
Table 4: Development of Land Uses by Phase
Development Scheme for Iqaluit's Next Neighbourhood
page 19
5.4
Lot Development Standards
The table below outlines lot development standards that will apply to all development in the
Development Area. This includes site layout considerations, building design, and building systems. A
discussion of the proposed building system standards is described below.
Lot Development Standards
Site Layout
1
Building entrances should avoid facing the northwest prevailing winds since these will have the highest potential for
cold air infiltration into the building. Where an entrance must face northwest, a wind screen will be constructed.
Building Design
2
As part of this Development Scheme, the City will adopt Energy Standard Requirements. The Energy Standard
Requirements will be adopted at a later date through an amendment to this Plan.
3
A wind study shall be required for all buildings three or more storeys in height, or with a length greater than 25m, or
with a gross floor area greater than 500m2.
4
Building design shall provide 0.8 metres of clearance beneath the building to prevent snow drifting against building
faces (i.e. no solid skirting or enclosed storage below buildings). The Development Officer may grant exceptions if
the applicant can demonstrate that downwind effects are minimized by site layout and building design, where slab-
on-grade construction is used, or where site topography creates hardship in achieving this standard.
5
Buildings shall be designed to respect and respond to the topography of the site. Stepping of the building to reduce
massing and excessive pile height will be required.
6
Residential units shall be encouraged to maximize solar exposure in active areas (such as the living room and
kitchen). Passive areas in which light, views and heat are less important (such as storage areas, utility rooms, and
bedrooms) should be located towards the building's northern facades. Avoid placement of accessory buildings in
front of south-facing windows, where possible.
7
All ground-oriented residential development shall incorporate wind lock entries (vestibules) into dwelling unit
design to help prevent energy loss and to provide storage space, particularly to support land-based economy
activities.
Building Systems
8
All windows installed must be ENERGY STAR® qualified windows under the Natural Resources Canada (NRCan)
EnerGuide Program.
9
All buildings will use oil-fired water heaters instead of electric water heaters.
10
All buildings will use Heat Recovery Ventilators (HRV) as a ventilation standard.
11
No buildings shall be permitted to have electric baseboard heating as the primary heating system.
5.5
Affordable Housing
The City would like to improve access to housing for lower-income groups in the City. In keeping
with General Plan policy, a target minimum of 7% of the leasable lot area will be affordable, according
to the income percentile established by Council. At this time, affordable housing is housing that is
affordable to the 50th income percentile.
As part of this Development Scheme, the City will adopt an Affordable Housing policy. The
Affordable Housing policy will be adopted at a later date through an amendment to this Plan.
Development Scheme for Iqaluit's Next Neighbourhood
page 20
5.6
Radar Site Influence Areas
The 150-metre and 300-metre Radar Site Influence Areas are indicated on the Concept Plan in
Schedule A. The buffers respond to Policy 8 of Section 5.11 of the General Plan, which ensures non-
interference with the air navigation communications system (NAV Can VOR/DME site) located at the
top of Niaqunngusiariaq Road through:
a) Prohibition of any development, obstructions, buildings, or equipment within a 150-metre
radius of the antenna array; and
b) Restrictions on development (ie. materials and height) within a 300-metre radius of the antenna
array in accordance with provisions set out in the Zoning By-law.
c) Notwithstanding the above, development applications that do not comply with NAV Canada
standards may be considered subject to NAV Canada's review and acceptance.
As part of its Zoning By-law amendment process, the City will engage in additional consultation with
NAV Canada.
Development Scheme for Iqaluit's Next Neighbourhood
page 21
6.0 DEMONSTRATION PLAN
Looking west
Looking southeast
Development Scheme for Iqaluit's Next Neighbourhood
page 22
Looking north
7.0 MONITORING
In implementing the policies of this Development Scheme the following should be monitored and
reviewed at the beginning of each phase of development:
-
The effectiveness of lot development standards in each phase of development, and make
modifications where required;
-
Housing demand and needs;
-
Demand for non-residential development lots;
-
The success of call for proposals;
-
The success implementing the affordable housing policy;
-
Impact of development on snow, wind and drainage patterns; and
-
Recurrent issues/challenges in the development review process that may need to be addressed
with Zoning By-law amendments or other corrective measures.
Development Scheme for Iqaluit's Next Neighbourhood
page 23
Schedule A - Land Use Concept Plan
Development Scheme for Iqaluit's Next Neighbourhood
Schedule B - Servicing Concept Plan
page 24
Development Scheme for Iqaluit's Next Neighbourhood
Schedule C - Phasing of Development
page 25
Development Scheme for Iqaluit's Next Neighbourhood
Schedule D - Transportation Plan
page 26