Policy review for Haldimand and Norfolk
counties with an Active transportation, Food
security and Access to recreation Lens
Review conducted for:
Healthy Communities Partnership Haldimand and Norfolk
Haldimand Norfolk Health Unit
Haldimand County
Norfolk County
Review conducted by:
Paul Young, public space workshop
www.publicspaceworkshop.ca
March 31, 2013
1
Introduction and Report Structure
1. Land Use Planning and Health
Historically, the fields of town planning and public health worked together to improve the built environment for
better health. Issues included housing, water quality, sanitation, and mitigating industrial pollution. Researchers
continue to examine the health impacts related to how we plan our communities and are now finding that our
patterns of development are linked to rising rates of chronic disease. Policies shaping our built environment
have made it easy to move around by car while walking and cycling have become difficult and even dangerous.
Distances between home and everyday destinations such as the grocery store, place of work or a park have
become long and unwalkable. Policies that shape our built environment are reducing physical activity rates,
increasing injury rates, limiting access to everyday needs such as food and recreation, and they are affecting
overall mental health (Healthy Canada by Design, 2012).
2. Report overview and how it can be used
This report is a review of key land-use planning policies used in the Counties of Haldimand and Norfolk. The
review examines the degree to which each municipality ‘s Official Plan, Secondary Plan and Trails Plan support
three health considerations of active transportation, food security and access to recreation (all three are defined
in Part B). The review is written for municipal staff, public health officials, decision makers and interested
individuals who are making decisions for master plans, secondary plans and by-laws. It can be used to shape
future planning policies as they are updated over time or as an educational tool for stakeholders. Such changes
can in turn, help to support the health of people in Haldimand and Norfolk Counties.
Haldimand and Norfolk Counties are unique. This guide is intended to assist in the development of healthy
public policy. It is not prescriptive or exhaustive in scope. Rather, it can serve to support discussions about how
to draft and incorporate policies to support active transportation, food security and access to recreation in the
best way possible for each municipality.
3. Acknowledgements
The author would like to thank the project advisory committee for establishing the project and for their valuable
contributions regarding health and land-use policy.
Michele Crowley
Tricia Givens
Heather Keam
Heather King
Kathy Page
Shannon Van Dalen
Sheila Wilson
Physical Activity Promoter
Norfolk County Planner
Healthy Communities Coordinator
Program Supervisor Norfolk County Community Services
Public Health Dietitian, Haldimand-Norfolk Health Unit
Haldimand County Planner
Manager, Community Development & Partnerships
2
The project team would also like to acknowledge funding for the project from Ontario Ministry of Health and
Long Term Care, Healthy Communities Fund.
The principal author of the report is Paul Young of Public Space Workshop. He is a registered landscape
architect with the Ontario Association of Landscape Architects and the Canadian Society of Landscape
Architects. He has a master’s degree in urban planning and over 20 years experience in planning, urban design
and health promotion.
4. Scope of the policy reviews
There is a wide range of municipal planning policies that can impact health. These include policies regarding
playground safety, healthy foods in municipal facilities, water quality, public health inspections, smoking by-laws
and various programs to encourage recreation and civic engagement to name a few1. This review is aimed
specifically at the following land-use planning documents:
1. Official Plans for both Haldimand & Norfolk Counties
2. Lakeshore special Policy area Secondary Plan (Norfolk)
3. The Trails Master Plans for both Haldimand & Norfolk Counties
Each of the three policy types (Official Plan, Secondary Plan and Trails Plan) will be reviewed to determine the
level of support for the following health considerations:
1. Active Transportation
2. Access to Recreation
3. Food Security
5. How the review is organized
Each of the three health considerations (Active Transportation, Access to Recreation and Food Security) can be
supported by planning policies. The review framework is structured similar to that of an Official Plan so that
recommendations might be more easily implemented into the plans. For consistency, the Secondary Plan and
Trails Plans were reviewed under the same structure.
The review is structured in 4 sections as follows:
Section1 : Relevant Plans, Strategies and Studies for Haldimand and Norfolk Counties
Aside from the plans being reviewed in detail (Official Plan, Trails Plan and Secondary Plan) there are a number
of local municipal background reports that are relevant to the planning policies being reviewed. And there is a
1
For a comprehensive municipal policy scan refer to Healthy Communities Partnership Haldimand and Norfolk, Healthy
Communities Policy Review for Healthy Eating and Physical Activity, March, 2021
http://www.hcphn.com/images/resources/hn_policy_review_final_report_may_%202012.pdf
3
provincial planning context. These documents are summarized under Part A. Some particularly relevant
excerpts are cited under the “rationale” sections of active transportation, recreation or food security.
Section 2: Health Considerations: Active Transportation, Food Security and Access to
Recreation
For each Health Consideration (Active Transportation, Access to Recreation and Food Security) the following is
provided:
i) A definition of the health consideration
ii) A rationale or why it is important to including the Health Consideration in land use planning policy.
This section includes general research evidence, local research and local strategic directions
iii) Sample policies for each Health Consideration; organized according to a typical Official Plan structure:
Part 1. The Plan’s Vision, Strategic Direction and/or Guiding Principles
Part 2. Transportation
Part 3. Urban Design
Part 4. Land Use Policies
Part 5. Parks and Open Space
Part 6. Implementation and Measurement
Section 3: The Planning Policy Review Tables
There is one table for each County. The top of the table identifies the policy under review (i.e., Official Plan,
Secondary Plan or Trails Plan). Listed down the left side are the Health Considerations (Active Transportation,
Food Security and Access to Recreation). The policies were reviewed and recommendations are provided as
items for consideration. They are coded as follows:
Chart Legend
 Existing policies that support the Health Consideration
□
Opportunity for addition or clarification to the policy to better support the Health Consideration
Section 4 : Summary and Conclusions
This section includes:
□
An “at-a-glance” chart summarizing the more detailed policy reviews in Part C
□
Conclusions
□
Bibliography
4
Contents
Introduction and Report Structure .............................................................................................................. 2
1. Land Use Planning and Health ........................................................................................................... 2
2. Report overview and how it can be used ............................................................................................ 2
3. Acknowledgements ............................................................................................................................. 2
4. Scope of the policy reviews ................................................................................................................ 3
5. How the review is organized............................................................................................................... 3
Section 1. Relevant Plans, Strategies and Studies for Haldimand and Norfolk Counties .......................... 8
Provincial Planning Context ................................................................................................................... 8
Specific to Haldimand............................................................................................................................. 8
Specific to Norfolk. ................................................................................................................................. 9
Section 2. Health Considerations: Active Transportation, Food Security and Access to Recreation
(Including Definition, Rationale and Sample Policies) ............................................................................ 12
1. Active Transportation ........................................................................................................................... 12
Definition .............................................................................................................................................. 12
Rationale: why is active transportation important? .............................................................................. 12
Physical Activity ............................................................................................................................... 12
Public Transit Availability ................................................................................................................ 13
Health Equity and Inclusion.............................................................................................................. 14
Safety and User Comfort - If you build it they will come ................................................................ 15
Building Community ........................................................................................................................ 16
Economic Development and Quality of Life .................................................................................... 16
Economic Development and Tourism .............................................................................................. 17
The Environment and Air Quality .................................................................................................... 17
iii) Active Transportation: Sample Policies for Official Plans, Secondary Plans and Trails Master
Plans ...................................................................................................................................................... 17
Part 1. Official Plan Strategic Directions & Goals, .......................................................................... 17
Part 2. Transportation policies .......................................................................................................... 18
Policy Examples................................................................................................................................ 18
Transit ............................................................................................................................................... 19
The municipality has or commits to developing an Active Transportation Plan (cycling and
walking), as part of an overall Transportation Master Plan .............................................................. 19
Part 3. Urban Design ............................................................................................................................. 20
Hamlets, settlement areas and through traffic: ................................................................................. 21
Part 4. Land Use Policies ...................................................................................................................... 21
Retail and Commercial ..................................................................................................................... 21
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Institutional ....................................................................................................................................... 22
Residential......................................................................................................................................... 22
Part 5. Parks and Open Space ............................................................................................................. 22
Part 6. Implementation and Measurement .......................................................................................... 23
Engagement....................................................................................................................................... 23
Evaluation & Indicators .................................................................................................................... 23
Zoning By-laws ................................................................................................................................. 23
Impact Studies ................................................................................................................................... 24
2. Food Security ........................................................................................................................................ 25
i) Definition ........................................................................................................................................... 25
ii) Rationale: Why is food security important? ..................................................................................... 25
Healthy Eating .................................................................................................................................. 25
Access to healthy food ...................................................................................................................... 26
Poverty .............................................................................................................................................. 26
Building Community ........................................................................................................................ 27
Developing a Food Strategy.............................................................................................................. 28
iii) Food Security: Sample Policies for Official Plans, Secondary Plans and Trails Master Plans ...... 28
Part 1. Vision, Strategic Directions or Goals .................................................................................... 28
Part 2. Transportation........................................................................................................................ 29
Part 3. Urban Design ......................................................................................................................... 29
Part 4. Land Use Policies ................................................................................................................ 29
Part 5. Parks and Open Space ......................................................................................................... 30
3. Access to Recreation ............................................................................................................................. 31
i) Definition ........................................................................................................................................... 31
ii) Rationale: why is access to recreation important? ........................................................................... 32
Personal Health ................................................................................................................................. 32
Having recreation facilities nearby supports higher levels of physical activity ............................... 33
Social inclusion ................................................................................................................................. 33
Cost Savings of Physical Activity..................................................................................................... 33
Determining long term recreation needs and preferences ................................................................. 33
iii) Access to Recreation - Sample Polices for Official Plans, Secondary Plans and Trails Master Plans
............................................................................................................................................................... 34
Part 1. Vision, Strategic Directions or Goals ................................................................................... 34
Part 2. Transportation....................................................................................................................... 34
Part 3. Urban Design ....................................................................................................................... 35
Part 4. Land Use Policies ................................................................................................................ 35
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Part 5. Parks and Open Space ......................................................................................................... 36
Part 6. Implementation and Measurement ...................................................................................... 36
Section 4. Summary and Conclusions ...................................................................................................... 37
Table 3. A summary of policy supports ................................................................................................ 37
Conclusions ............................................................................................................................................... 39
Bibliography............................................................................................................................................ 40
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Section 1. Relevant Plans, Strategies and Studies
for Haldimand and Norfolk Counties
The Official Plans, Secondary Plans and Trails Master Plans are set in a larger context of provincial policies and
municipal strategic directions. Below are some of the high level documents that set out these strategic
directions and identify priority issues. The municipal strategies typically emerge from an extensive consultation
process and help provide insight on economic development directions, how the Counties envision their future
and on their overall health status. The points most relevant to active transportation, food security and access to
recreation are summarized under each document title.
Provincial Planning Context
There are several policies and publications that influence municipal planning policy in the province of Ontario all of which recognize the link between planning and chronic disease. Included are:
Provincial Policy Statement (PPS) 2005
The PPS sets out policy direction for all land use planning matters. It reiterates requirements that
planning policies will support dense, mixed use communities that are healthy, active and support active
transportation and transit. Further, the PPS recognizes the importance of parks and recreation, green
spaces, trails and trail linkages and the long term preservation of farmlands. It promotes agriculture,
recreation and tourism to support rural economies. Among other matters, these are of provincial
interest and as such, all planning policies are required to be consistent with the PPS. The province is
currently reviewing PPS 2012 and a draft version is now available at
http://www.mah.gov.on.ca/AssetFactory.aspx?did=9881
Places to Grow (for Haldimand County only)
Places to Grow is the Ontario government's growth plan for the Greater Golden Horseshoe and it
includes Haldimand County. It sets out a number of requirements that municipal plans must conform
to. It supports intensification and infill in existing settlement areas and a range of housing types for
different needs and life stages. Haldimand is in the process of conforming to the Places to Grow plan.
Report link: www.placestogrow.ca/index.php
Planning By Design
Planning by Design, 2009 is an illustrated publication by the Ministry of Municipal Affairs and Housing
and the Ontario Professional Planners Institute (the body that licences all registered planners in
Ontario). It outlines various tools in the Planning Act that can support the creation of healthy
communities and is available at http://www.mah.gov.on.ca/AssetFactory.aspx?did=7171.
Specific to Haldimand
Haldimand County Strategic Directions (2004)
8
□
Protect environment resources, support agriculture and other industries (tourism), manage growth, build
community, maximize built and natural leisure opportunities for a high quality of life, build relationship
between social services and other agencies, monitor progress
Report link:
http://www.haldimandcounty.on.ca/uploadedFiles/Our_County/About_Haldimand_County/Countys_Of
ficial_Plan/Strategic%20Directions.pdf
Haldimand County Lakescape Action Plan
□ Emphasis on water and nature based multi-use recreational tourism
□ Needs include facilities (washrooms, showers, signage) campgrounds, public water access, mitigate
speeding and heavy traffic on Lakeshore Rd., create safe bicycle and pedestrian routes (see trails master
plan)
Report link: https://www.haldimandcounty.on.ca/OurCounty.aspx?id=15587
Haldimand County Strategic Master Plan for Leisure Services & Facilities (2006)
□ Top leisure preferences were festivals/fairs, walking, cycling swimming and golfing
□ Three most desired facilities: indoor pool, nature trails and paved trails
□ Link with schools
□ Serve youth
□ Develop infrastructure for residents and tourists on waterfronts (Grand River and Lake Erie)
□ Develop County trail system - especially for connecting communities / waterfronts
□ Will explore gaps in service (e.g., playgrounds)
Specific to Norfolk.
Norfolk County's strategic plan (council):
□ Community well-being: To ensure the County supports programs and services to meet the quality of life
needs of the community.
□ C. Deliver Strategies to Retain and Attract Youth to the Community
□ D. Promote a Healthy and Sustainable Environment
Report link: http://www.norfolkcounty.ca/government/strategic-plan/
Norfolk County’s strategic plan (corporate):
□ Assure Determinants of Health are Addressed (relevant details include: reducing energy consumption by
5%, support renewable & alternative energy, improving transportation infrastructure for access to
services, increase knowledge of food security & improve food security)
□ Retain and attract youth
□ Enhance community access to services e.g., (increase number of accessible buildings)
□ Economic Development (initiate tourism strategy)
□ Update Waterfront Master Plans
Report link: http://www.norfolkcounty.ca/government/strategic-plan/
Norfolk County Community Services Department Business Plan, 2012
□ Review of recreation programs will be undertaken to ensure sustainability and that the programs offered
are financially viable and meet the best interests of a changing demographic
□ To facilitate implementation plans for the Norfolk Rural Transportation Initiative
□ To implement the Norfolk County Trails Strategy. Consider policies to integrate with any identified onroad facilities that may be used in combination with the off-road trails
9
□
□
Develop a formal process for ongoing demographic and trends analysis. Consider partnership with Public
health to utilize data
Encourage all citizens of Norfolk County to increase the amount of daily physical activity they include in
their lives
Official Plan Vision Statement,2005
□ Norfolk is dubbed a seniors friendly community. The older adult population has doubled. The County has
supported this with a range of specific services including transportation.
Report link: http://www.norfolkofficialplan.ca/documents/online/vision/index.html
Norfolk County Economic Development Strategy The Draft Implementation Framework - Norfolk County
Economic Development Strategy is under way.
□ Strengthening transportation linkages (industry is high priority). This implies the need for a larger
transportation strategy for the County (include walking and cycling)
□ Support Tourism Sector. This could imply support for walkable downtowns and for county-wide on and
off-road cycling opportunities, events and programs to link to the lake, urban areas and other
destinations of interest for tourism and local needs
□ Attract and retain youth. This could include considerations about quality of life and transportation for
those that can’t or don’t drive (including youth). It could also include recreation opportunities suited to
youth.
□ Update Official Plan and CIP to include best practices. This could include recent efforts from the Ontario
Professional Planners Institute to promote health and walkable communities (see Ontario Professional
Planners Institute, 2012)
□ Support green energy & industry opportunities. This could include larger scale composting & heat
recovery
□ Promote and build on local food industries. This could be included in an overall strategy for healthy food
and food security
Report link: http://www.norfolkcounty.ca/business/strategy/
Haldimand and Norfolk
Nutritious Food Basket annual reports: How Much Does Healthy Eating Cost in Haldimand and Norfolk
□ The Haldimand-Norfolk Health Unit, like others in Ontario, annually prices out the nutritious food basket
every year to determine the cost of healthy eating in its area. The basket consists of 66 food items that
are nutritious and commonly purchased.
Food Services Maps and report Where’s the Food have been produced for both Haldimand and Norfolk.
□ The maps identify a variety food access points (food banks, grocery stores, etc.). They illustrate
concentrations of services and areas where services are scarce (i.e., “food deserts”)
Local Food Maps, both Haldimand & Norfolk Counties have a map locating farms and farm-gate retail
Trails Master Plans have been produced for both Haldimand and Norfolk counties.
□ The plans are reviewed in the Part C of this report
Note: A comprehensive list of benefits relating to trails and active transportation infrastructure can be
found in Haldimand’s Trails Master Plan report beginning on page 12
Cycling Routes Map
10
□
Both Counties have a cycling routes map that is separate from the Trails Master Plan. The map appears
geared for tourism. It does not identify route character (i.e., if routes are separated from traffic) or
identify trails for varying abilities
A population health status report: A Roadmap for Health in Haldimand and Norfolk: Together We Can Turn
the Curve (Feltracco and Harmon, 2011).
□ A comprehensive description of both Counties including the population statistics, economic directions
and general geography
□ Most people in the Counties live in a rural setting and just under half of population lives in urban areas.
□ For many of the health indicators, rural populations face higher barriers to health and health services
and they have poorer health outcomes (Feltracco and Harmon, 2011)
□ Relevant excerpts are cited in Blue and referenced (Feltracco and Harmon, 2011) throughout Part B the
report.
An overview and survey of Active Transportation in the Counties Walkable Communities in Haldimand and
Norfolk (Esbaugh, 2010)
□ Research conducted by the Haldimand Norfolk Public Health Unit includes responses from 300 phone
interviews
□ Includes information on:
 The frequency of physical activity
 Frequency of walking or cycling for utilitarian purposes
 How walkability in a neighbourhood affects decision about where to live
 Barriers to trail use, affect of distance to trails
□ People 64 and older have higher understanding of walkability issues and express more support
□ Relevant excerpts are cited in Blue and referenced (Esbaugh, 2010) throughout Part B the report.
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Section 2. Health Considerations: Active
Transportation, Food Security and Access to
Recreation (Including Definition, Rationale and
Sample Policies)
1. Active Transportation
The following section outlines research and local policy related to active transportation. While not the focus, it
also lists factors relevant to the later sections on food security and to access to recreation. For example, active
transportation facilities can provide good access to recreation and active transportation requires walkable,
mixed-use communities with nearby destinations like parks or food stores to improve food security. Given the
overlap, this section is longer than food security and access to recreation. Some sample policies are coded F
(food security) or R (recreation) if they cover an additional health consideration.
Definition
Active transportation refers to any form of human-powered transportation – walking, cycling, using a
wheelchair, in-line skating or skateboarding. There are many ways to engage in active transportation, whether it
is walking to the bus stop, or cycling to school/work (Public Health Agency of Canada). It is most effective for
shorter trips and can be combined with public transit for longer distances.
Rationale: why is active transportation important?
Physical Activity
Physical activity levels are at record lows while related preventable illnesses such as heart disease and diabetes
are at record highs. Cycling and walking are easy, affordable, low-impact activities which can improve health for
a large number of people. Walking continues to be the most popular physical activity in Canada. Cycling comes
in fifth after walking, gardening, home exercise and swimming (Gilmore, 2007).
Even though a high percentage of everyday trips are within easy cycling or walking distance, people of all ages
continue to rely on the car as their primary mode of transportation. Research indicates travel options are often
limited because of planning and transportation policies that favour the private automobile. As a result most
people rely on their cars (or in the case of children - school busses) for travel and levels of walking and cycling
for transportation have plummeted.
12
Neighbourhood design influences how people travel. Compact, mixed use neighbourhoods have significantly
higher levels of physical activity for both children and adults (Frank et al, 2005, 2007). Most studies agree that
these two elements of higher density and a greater mix of uses are positively associated with walking and cycling
for utilitarian trips (Heart and Stroke Foundation, 2012). This combination can be found in most all of the
original town centres of communities across Southern Ontario. County councillors and staff, school boards and
residents play an important role in supporting the creation of communities that support active transportation.
Active transportation provides options for transport that are easy and affordable but also integrate exercise into
daily routine. Those who live in walkable neighborhoods are more likely to meet recommended daily levels of
physical activity (Frank et al 2005). Walking or cycling can provide over 25% of a child’s daily physical activity
requirement (Basset cited in Active Living Research 2013). Having schools nearby within walking or cycling
distance is critical2.
□
Over half of residents in Haldimand and Norfolk are overweight or obese and the number is growing. The
rates are higher than Ontario wide rates (2005 and 2008). Overweight or obese residents increased by
10.6% from 53.4% in 2005 to 64.0% in 2008 (Ontario was just 1.1%) (Feltracco and Harmon, 2011)
□
Deaths from circulatory diseases (stroke, high blood pressure, and ischemic heart disease) are the
leading cause of death for residents of Haldimand and Norfolk and (40% of all deaths in 2005) and they
are on the rise. (Feltracco and Harmon, 2011).
□
About 25% of residents 12 years and over reported being “active”, about 20% reported being
“moderately active” and about 50% were “inactive” - similar to Ontario rates (Feltracco and Harmon,
2011).
□
When surveyed about walking and cycling in the Counties:
26% spend no time at all walking to work, school or doing errands during a typical week. 37% spend
under an hour. The greatest proportion of respondents (32%) spent 1 - 5 hours per week on these
activities while 31% spent over 5 hours (Esbaugh, 2010). Respondents spent even less time cycling to
work, to school or while doing errands. 82% spent no time performing these activities, while the greatest
proportion of respondents (9.2%) report cycling 1 - 5 hours per week (Esbaugh, 2010).
Public Transit Availability
Public transit is a necessary component of the active transportation mix. It allows pedestrians, cyclists and
people with a physical disability to travel greater distances without being dependant on a car. Compact, dense
communities are easier to serve with transit. Demand for transit is growing. Norfolk County has initiated a
Public Transit system called Ride Norfolk.
□
Nine out of ten residents in the combined Counties want and will use some form of public transit3
2
Children who live within 1500 m of school were the most likely to walk, followed by those living between 1500 m and 2500
m. Fewer than 4% of children who lived over 2500 m from school walked to school (Schlossberg et al., 2006 cited in Daniel, K.
and Perrotta, K, 2009).
3
92% of the Haldimand Norfolk Rural Transportation Initiative survey respondents believed that a public transportation
system is needed in the counties. 68% reported that they would use public transportation if it were available, chiefly for
recreational and social activities (69%) and to attend medical appointments (59%). Students, retired, unemployed and others
13
□
The following excerpts from local articles outline a recommended transit plan and the costs associated
with not having any transit.
Entra Consultants produced the Haldimand & Norfolk Rural Transportation Initiative. It envisaged a bus
service connecting Delhi, Simcoe and Jarvis along Highway 3, with an extension up Highway 6 to
Hagersville. A proposed second phase would have added Port Rowan, Cayuga and Dunnville to the mix.
Haldimand chose not to act on the report. Norfolk council responded by asking Entra to structure a
Norfolk-only plan. http://www.brantfordexpositor.ca/2010/10/05/funds-sought-for-transit-pilotprogram
The financial and social cost of immobility in the two counties was the subject of a conference in
November 2006. Nearly 30 social service and volunteer agencies were represented. After pooling their
information, they concluded they spend between $1.3 million and $1.9 million a year transporting clients
to front-line service centres.http://www.brantfordexpositor.ca/2008/01/12/initiative-to-examine-publictransportation-in-haldimand-norfolk
□
Both counties have aging populations and a decreasing proportion of younger adults (Feltracco and
Harmon, 2011)
Health Equity and Inclusion
In large, rural counties like Haldimand and Norfolk, a motor vehicle is essential for most people. However, in
many communities approximately 30% of the population (including seniors, children, low income households
and those without a driver’s licence) do not have access to a car and must rely on other means for mobility.
□
When surveyed in Haldimand and Norfolk, the age 64 and older group appeared more knowledgeable
about and concerned with the existence of components of walkable communities when deciding where
to live. It is plausible that walking may be their main or only form of transportation, and a walkable
community is key to maintaining quality in their lives (Esbaugh, 2010).
□
Falls among seniors were the number one cause of hospitalizations from unintentional injuries and
these are significantly higher than the Ontario average. (Feltracco and Harmon, 2011). 56% of falls occur
outside the home such as in the yard, on the street, or in a public place (Campbell, 1990).
For many households a high percentage of income is spent on car ownership4. That cost will be
disproportionately higher for lower income households. Cost of living expenditures can be greatly reduced
when households do not need to have multiple cars to meet their everyday travel needs5.
had the greatest difficulty travelling. More than half of all respondents in all types of employment and education reported a
willingness to use public transportation if it was made available to them (Feltracco and Harmon, 2011).
4
The Canadian Automobile Association estimates the annual cost of a car to be between 10,000 and $15,000 a year
depending on the type of car and distances covered http://www.caa.ca/docs/eng/CAA_Driving_Costs_English.pdf
5
Bikes at Work provides a calculator to determine how car-related costs can be re-allocated to provide housing funds,
retirement savings or an education plan http://www.bikesatwork.com/blog/the-real-cost-of-car-ownership
14
People with a lower socio-economic status are more likely to use active forms of transportation, however
they are also more exposed to higher outdoor pollution levels and pedestrian-vehicle injury risks, and more
likely to live further from daily destinations such as work, school, or healthy food retailers when compared to
higher socio-economic status groups (Healthy Canada by Design, 2012, pg. 7).
Youth will be seeking out communities with affordable transportation. The number of youth obtaining drivers
licences is in steady decline in North America. Those in their early working years are seeking out communities
with good transit and support for driving alternatives (Sivak and Schoettle cited in UMTRI, 2011).
Transportation policy wording can help reduce inequity. Historically it has been skewed towards moving motor
vehicles. Litman (2002) recommends that wording be objective and clear, for example the word traffic includes
pedestrian and cycling modes but is often intended to mean motor vehicle traffic, and road improvements
should be improvements for all users including active mode (in contrast to the more common interpretation road widening). (Litman, 2002)
Safety and User Comfort - If you build it they will come
Lack of safety is one of the main reasons people don’t walk or bike. A recent survey conducted by Ontario’s nonprofit “Share the Road” revealed:
 94% rode bikes as children, but only 6% are riding every day or almost every day.
 60% of Ontarians say they would prefer to cycle more often.
 55% say they do not because they are primarily “worried about safety on the road”.
 39% “not enough bike routes…“
(Share the Road Cycling Coalition, 2009 Ontario Survey)
Adding active transportation (AT) infrastructure (sidewalks, bike lanes, paved shoulders, trails, traffic calming,
etc.) will increase safety in two key ways. Safety is first improved by providing facilities to separate cars from
vulnerable road users (e.g., pedestrians and cyclists) and second, as more AT users are drawn to the safe
facilities, visibility and awareness of AT grows. This is the “strength in numbers” phenomena (TCAT, 2012 and
Jacobsen, 2003).
Pedestrian injury is a leading cause of death for Canadian children. Vehicles moving at a speed of over 30-40
km/hr present a greater risk to pedestrians. Measures to reduce speed will improve pedestrian safety for all
ages and especially children. Speed is often a factor in motor vehicle crashes as well. Lowering posted speed
limits can help but this measure often relies on police enforcement. Traffic calming and road design can be more
cost effective in reducing speeds and improving overall safety6.
□
In both counties, hospitalization rates due to motor vehicle crashes are more than double that of
Ontario which saw a decline in crashes for the same time period7 (Feltracco and Harmon, 2011) .
6
In general, low-speed (under 32 Km/hr), “main-street”-type designs reported the lowest rates of vehicle-pedestrian
collisions, while areas with wide travel lanes and higher operating speeds reported the highest rates. A further study from
the United Kingdom found that street networks that have multiple lanes of higher speed, through-traffic are the conditions
in which older adults are most likely to be involved in a crash (Dumbaugh, E., 2008 cited in Halton, 2009).
7
The 2006 Haldimand-Norfolk Unintentional Injury Report suggests that rural roads may not be well designed and rural
drivers may be less compliant with road safety behaviours, advocating for more research into the issue (Feltracco and
Harmon, 2011)
15
Thru the provincial places to grow legislation municipalities are required to incorporate “complete streets
policies” to improve conditions for all road users. Many municipalities who are not under the places to grow
recognize the importance of incorporating complete street policies in planning.
Complete streets are designed and operated to enable safe access for all users. Pedestrians, bicyclists,
motorists and transit riders of all ages and abilities must be able to safely move along and across a complete
street (Complete Streets Coalition). In Ontario the Ontarians with Disabilities Act sets out standards for
municipalities to ensure pedestrian infrastructure accommodates wheelchairs and people with other
physical disabilities.
Building Community
As summarized in Part A, both counties have strategic documents that put a high priority on building
community. Longer trip distances between separated land uses combined with a lack of public transit, walking
or cycling facilities results in car dependant communities and fewer opportunities for spontaneous social
interaction. Car dependence increases traffic volumes and speeds and along busier roads and degrades the
pedestrian and cyclist’s experience. Speed, volume and safety concerns are major deterrents to walking
(Engwicht cited in Litman 2002 and Healthy Canada by Design, 2012). Car dependence (including long
commutes and congestion) reduces the amount of free time that residents might otherwise use for volunteering
or community activities (i.e., building social capital). Communities with active streets and public spaces have
higher rates of social capital necessary for building community cohesion (Appleyard, cited in Litman 2002).
Sense of community traditionally evolves through easy foot access–people meet and talk on foot which
helps them develop contacts, friendships, trust, and commitment to their community. When everyone is
in cars there can be no social contact between neighbors, and social contact is essential to developing
commitment to neighborhood. (Untermann and Vernex, cited in Litman 2002)
In a rural community such as Haldimand and Norfolk there will always be a component of car dependence, so it
is important that urban and commercial areas have opportunities that allow for people to “park and walk”.
Economic Development and Quality of Life
Haldimand and Norfolk’s strategic plans are consistent with many municipalities in that they seek to attract and
retain population and investment. They want to support an aging population and retain youth. Quality of life is a
significant consideration when residents or businesses choose between municipalities. Walkability has become
an accepted measure of “quality of life”. The emergence of tools such as walkscore and bikescore in real estate
evaluation are just two examples. Attractive surroundings, vibrant downtowns, easy access to schools, shopping,
employment, nature and trails - these attributes improve the desirability, health and economic vitality of a
community by providing everyday opportunities for exercise – opportunities that are unscheduled, informal,
easy, pleasant and inexpensive.
Haldimand Norfolk areas residents were asked about the importance of a walkable community when
deciding where to live. The most important components affecting decisions of where to live were:
1. Having sidewalks and pathways that are connected (71.6%)
2. Living within a five- to 10-minute walk of parks (61.8%)
3. Living within a five- to 10-minute walk to stores and restaurants (50.6%) (Esbaugh, 2010)
16
Regarding costs related to development and planning, municipalities that build compact developments in
existing urban areas save the costs of building and maintaining new infrastructure and extending services like
waste collection.
Areas that support pedestrian traffic experience higher retail sales. And trends indicate that recreation (for local
and tourist needs) that involves walking, hiking and cycling are on the rise (Healthy Living Niagara, 2013).
Economic Development and Tourism
Walking and cycling facilities have proven benefits for tourism. Niagara region for example has statistics
indicating that bicycle tourists spent $164 million in 2002 (representing 12% of total tourism expenditure)
fuelling almost 5000 jobs (primarily in restaurants, retail and lodging). For more evidence on the economic
development benefits of active transportation refer to Healthy Living Niagara’s (2013) fact sheet series at:
http://healthylivingniagara.com/files/folders/active_transportation/entry857.aspx
The Environment and Air Quality
Walking and cycling does not create emissions making active transportation a powerful tool in any municipal
sustainability or climate change strategy. Poor air quality, due in large part to transportation emissions, affects
health. The impact is even more noteworthy for more vulnerable populations such as children and seniors.
The Ontario Medical Association estimated that, in 2005, approximately 17,000 Ontarians were admitted to
hospitals with health problems related to air pollution exposure—a number that is expected to rise to 24,000 in
twenty years (Transport Canada & Health Canada) http://www.tc.gc.ca/eng/programs/environment-utsppublichealth-995.htm
Regarding climate change, the transportation sector was responsible for 31% of Ontario’s total Green House Gas
emissions, making it the largest single source of GHG emissions in Ontario (Environmental Commissioner of
Ontario, 2008 cited in Daniel and Perrotta, 2009).
iii) Active Transportation: Sample Policies for Official Plans, Secondary
Plans and Trails Master Plans
Note: The following are examples of policies that can provide better support for Active Transportation. This
section includes policies that can also be used to support Food Security and Access to Recreation. To reduce
duplication in the three sections, an F or R have been added to indicate that the policy can be used to support
Food Security or Access to Recreation in addition to Active Transportation.
Part 1. Official Plan Strategic Directions & Goals,
Policies will:
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Flow from a meaningful engagement process with community, decision makers and stakeholders such as
developers, consultants and the community about developing a transportation strategy for the County F
R
17
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Include sustainability, improved quality of life and/or supporting a healthy community. Policies strive to
balance economic, environment and community vitality considerations. F R
Support complete communities (efficient, compact mixed-use land use patterns with nearby places to
shop, work, recreate, live, etc.) combined with complete streets (designed for all road users) F R
Ensure people are well connected to everyday needs including food, housing options, employment,
school, recreation, etc. F R
Identify health-related considerations such as:
 Reducing automobile dependence8 F R
 Supporting mobility for all, regardless of income and ability and including those without access
to a car (some seniors, youth, children, lower income and physically disabled)
 Providing a nearby network of opportunities for hiking, cycling and walking for recreation but
also for everyday transportation F R
Part 2. Transportation policies
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Create a transportation master plan
Are set in a Transportation Master Plan which includes an Active Transportation Plan and Transit Plan
(where feasible)
Acknowledge the challenges of mobility in a rural context for those without access to a car
Strive to reduce automobile dependence with supports for telecommuting, active transportation and
where feasible, public transit F R
Are consistent with the municipal Strategic Plan and/or the Vision or Guiding Principles section of the
Official Plan (e.g., healthy, sustainable, improved quality of life, “sustainable mobility”)
Strive for “complete streets” that provide for all road users including people with disabilities,
pedestrians, transit users (where feasible), cyclists, goods movement and motorists R
Prioritize “Active Transportation” for everyday transportation and not only for recreation
Require transportation studies that account for active transportation modes
Policy Examples
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All new roads and road improvements will accommodate safe and attractive pedestrian and cyclist
travel in a “context sensitive” manner taking into account the capacity and speed of the road (e.g.,
sidewalks and bike facilities on higher speed & volume arterials should be buffered from motorists). The
road should contribute to “place-making” and not detract from the intended function of the adjacent
use
Road resurfacing and reconstruction is viewed as an opportunity to improve infrastructure for all modes
of travel
A grid street pattern and safe, convenient pedestrian road crossings will be encouraged. Dead ends, cul
de sacs and wide roads decrease neighbourhood connectivity and present barriers to efficient, safe
pedestrian and bicycle movement
Prioritize improvements for non-motorized transportation especially where there are concentrations of
vulnerable road users (e.g., traffic calming around schools, retirement residences, downtowns, and new
developments9) F R
8
For a detailed explanation of automobile dependence, refer to The Costs of Automobile Dependency
and the Benefits of Balanced Transportation by Todd Litman, Victoria Transport Policy Institute August, 2002
http://www.vtpi.org/autodep.pdf
18
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Include a policy to minimize speeds in areas where pedestrian and cycling traffic is present, especially in
neighbourhoods, downtowns, near schools and other areas where pedestrians and cyclists concentrate
FR
Transit (Transit extends the travel distance for active transportation modes)
[note: Norfolk County has a Transit system]
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The municipality has or commits to undertaking a transit study to determine the feasibility of improved
transit service. The study will be completed by (a given date) F
Transit hubs and routes, (existing or planned) shall be integrated into land use and transportation
policies and included on map schedules
Direct walking and cycling routes will connect to transit hubs or stations (where applicable). For
example, the City of St. Catharines encourages the provision of convenient and safe pedestrian access
and a maximum walking distance of 400 metres to transit facilities through its planning approvals F
The existing transit system will be enhanced through integrating transit with cycling supports and
walking (e.g., accessible busses, bicycle racks on busses and at busier stops). F R
The municipality has or commits to developing an Active Transportation Plan (cycling
and walking), as part of an overall Transportation Master Plan to provide:
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A collaboratively generated vision for A.T. in the municipality
A safe, attractive, connected network for pedestrians and cyclists linking destinations such as
employment areas, schools, recreation and retail areas to residential areas and linking one urban area to
another F R
Practical, attractive walking and cycling supports for both transportation and recreation
Access to affordable mobility and improved safety for all ages, abilities and incomes
Key opportunities for improvements (along existing roads, missing linkages, trail, rail and hydro
corridors, busy intersections, road crossings, scenic or historic routes, etc.)
Integration with local and regional on and off-road trail systems (e.g., the County’s cycling network, the
Waterfront Trail, Trans Canada Trail)
Greater opportunities for everyday physical activity and reduced automobile dependence F R
A promotion and monitoring strategy R
A signage and way-finding strategy
The development of Community Safety Zones
Integrated cycling, walking and transit routes in an Active Transportation Map Schedule F R
Design guidelines and standards as per Part 3. Urban Design (below) F R
A background analysis including:
o Statistics identifying crash locations and areas of vulnerable road users (e.g., children, the
physically disabled, and seniors)
o Identifying roads scheduled for redevelopment or reconstruction. These provide immediate
opportunities for A.T. infrastructure improvements.
9
Age Friendly Cities Checklist 9 Age Friendly Cities Checklist
http://www.who.int/ageing/publications/Age_friendly_cities_checklist.pdf
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Part 3. Urban Design
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The municipality has urban design guidelines and/or streetscape standards to maximize safety for
vulnerable road users (i.e., pedestrians, cyclists, seniors, children, physically disabled) R
Traffic calming guidelines are available 10
Cycling and walking facilities are context sensitive11. That is they are designed to provide comfort and
safety in consideration of the motor vehicle volume and speed and the character of the road (e.g.
buffered when necessary from motor vehicles). A range of cycling options have been used in a Canadian
context including signed bike routes, sharrows, bicycle boulevards, bike lanes, separated bike lanes or
“cycle tracks” (one-way or two-way), paved shoulders and multi-use trails12. Winnipeg has a helpful
glossary of various infrastructure types here:
http://winnipeg.ca/publicworks/MajorProjects/ActiveTransportation/PDF/GuideToCyclingTreatments.p
df
Policies regarding facility design and implementation will reflect cyclists and pedestrian user
preference13 R
Sidewalks shall be required on both sides of the road and ideally, buffered from the roadway with a
treed boulevard R
Streets are universal accessibility (in keeping with the Accessibility for Ontarians with Disabilities Act)
with curb depressions at all intersections, tactile warning strips along the curb edge (i.e. at intersections)
and other measures such as audible crossing signals and accessible benches F R
At highway on and off-ramps: ensure safe pedestrian and cyclist crossings. Options include separating
road users, providing a physical buffer between sidewalk or bicycle lane and motor vehicles, normalizing
/ eliminating turn channels and acceleration lanes and adding traffic speed controls, lighting and bright
pavement markings for crossings
Road and block patterns will provide frequent opportunities for pedestrians to cross the street safely,
crosswalks or signalized intersections should be located at frequent intervals, particularly at transit stops
Policies locate benches, lighting and other furnishings such as public washrooms and drinking fountains
R
CPTED14 techniques are incorporated into design guidelines (e.g., windows located to promote safety
with “eyes on the street”, visible entries and floor plans that minimize distance to the sidewalk)
10
for Canadian traffic calming research http://www.tc.gc.ca/eng/programs/environment-utsp-trafficcalming-1172.htm
For a range of street design standards NACTO Street Design Guide 2012 http://nacto.org/wpcontent/uploads/2012/10/NACTOUrbanStreetDesignGuide_Highrez.pdf
12
Bike lanes are most helpful on streets with ≥ 3,000 motor vehicle average daily traffic. Bike lanes are most helpful on
streets with a posted speed ≥ 40 Km/hr. On streets with high traffic volume, regular truck traffic, high parking turnover, or
speed limit > 56 Km/hr, consider treatments that provide greater separation between bicycles and motor traffic such as:
 Left-sided bike lanes (i.e. on one-ways streets)
 Buffered bike lanes
 Cycle tracks- (U.S. based National Association of City Transportation Officials, NACTO, 2011) Urban Bikeway
Design Guide www.nacto.org
11
13
Safety improves as the number of cyclists on the road increases (Jacobsen, 2003). Routes along busier roads need to be
separated from motor vehicles if they are to attract more riders (and thus improve visibility and safety). Shared curb lanes
with sharrows along busier roads are among the least preferred (Teshke, 2007). The evidence to date suggests that
purpose-built bicycle-only facilities (e.g. bike routes, bike lanes, bike paths, cycle tracks) reduce the risk of crashes and
injuries compared to cycling on-road with traffic or off road with pedestrians (Teshke)
http://www.ehjournal.net/content/pdf/1476-069x-8-47.pdf
14
Crime Prevention Through Environmental Design
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Underground and overhead utilities locations are coordinated to accommodate desired urban design
outcomes on given roads (e.g., street trees in boulevards)
Shade trees are required where possible to provide additional climate protection, and contribute to an
attractive pedestrian environment R
Guidelines may call for canopies or arcades along the street frontage of buildings, in multi-unit
residential, retail, and commercial areas for weather protection
Parking studies are conducted to minimize large surface lots and promote active transportation
The municipality will minimize spacing between pedestrian crossings along arterial and collector roads in
settlement areas. It will discourage channelized right turn lanes, large turning radii, and double left turn
lanes
Vehicular entrances and exits which cross sidewalks will be rationalized and consolidated to minimize
sidewalk crossings and provide a safer pedestrian environment
Provide clear connections between sidewalks and building entries and physically separate pedestrians
from parking lots
All new road construction and road improvements will be designed to strengthen liveability and the local
economy by minimizing the impact of noise, speed and traffic volume on more sensitive adjacent land
uses
Policies will ensure all new road construction and road improvements will incorporate best design
practices to support safety for all road users and prioritize attractiveness and convenience for active
transportation modes R
Hamlets, settlement areas and through traffic:
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Policies will support pedestrian and cycling realm improvements near Hamlets or smaller settlement
areas to reduce conflicts between through-traffic and vulnerable road users R
Gateway locations are designated to signal a transition from a more rural, faster speed, regional road
into a settlement area to reduce speeds, improve safety and support the adjacent land uses. Gateways
are identified on map schedules and in secondary plans. Gateways use physical features (e.g.,
architectural elements, prominent buildings, entry walls, lane width reduction, plantings, lighting, onstreet parking and signage) to visually “pinch” the roadway to slow motor vehicles
Community Safety zones can be implemented (with increased fines for speeding)
Part 4. Land Use Policies
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All land use designations will include provisions for active transportation in their respective policies15
Policies will promote compact densities and a fine-grained land-use mix to minimize distances between
residential, office / commercial / retail, institutional and parkland / recreation uses F R
Retail and Commercial
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The municipality encourages protection of the downtown F R
New commercial retail development shall be located to reinforce the downtown and any identified,
walkable retail or commercial corridors F
The municipality will have a regional retail commercial strategy16 to:
15
Depending on the land use, considerations can include sidewalks, lighting, workplace showers, sheltered secure bicycle
parking, pay parking, etc.
16
A 110,000 square foot big-box store can generate 9,710 motor vehicle trips every day. Smart Growth on the Ground –
Large Format Retail http://www.dcs.sala.ubc.ca/docs/sgog_frb_ol_largeformatretail_sec.pdf
21
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Determine the capacity of the municipality to absorb additional retail/ commercial without
jeopardizing existing retail in more walkable locations F
 Designate connected, walkable areas where any additional commercial retail uses will be
directed F
 Discourage concentrations of un-walkable, large format highway commercial centres17 F
 Include a “Main Streets Program” to help guide a healthy retail mix18
Where Highway Commercial uses exist every effort will be made to connect to residential uses with
pedestrian and cycling infrastructure (trails, paved shoulders, buffered, treed sidewalks, safe, frequent
crossings, etc.) F R
Employment lands are to be well served by public transit (where possible) and well connected to cycling
and walking facilities F
The municipality will encourage walkable access to grocery stores and farmers markets (e.g. within 10
minute walk) by encouraging food stores in the areas that are experiencing a shortage F
Institutional
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Encourage the ongoing communication or consultation with local school boards to work towards a
School locating policies. This will support retaining existing schools and/or building new elementary and
secondary schools within walkable distance to the population they serve.
Existing publicly or community owned facilities (including schools and churches) will be permitted to
accommodate other community based services (drop-in programs, recreation) where needed19. F R
Schools and/or churches that are deemed surplus will be encouraged to re-purposed for community
uses including recreation or health care drop-in services F R
Policies discourage large parking lots and bus-dependant schools
The municipality will encourage new institutional uses (serving a concentration of vulnerable road users)
to locate in urban areas with good walking cycling and transit facilities
Residential
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A mix of housing densities and tenure shall be located within walking distance of daily needs.
Housing for people with special needs will be located in close proximity to community supports,
shopping and, if possible, transit F R
Urban design guidelines (see above) are in place for larger scale developments F R
Part 5. Parks and Open Space
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The municipality has a public open space system that includes an active transportation network
(including on and off-road facilities, natural heritage corridors, utility and rail corridors) R
Cycling and walking (active transportation) infrastructure are seen as both a recreational amenity and a
transportation system to facilitate safe, pleasant and direct connections R
The active transportation system connects everyday destinations within urban areas and hamlets but
also between urban areas and hamlets F R
17
A guide to retail impact studies can be found at http://www.ilsr.org/rule/economic-impact-review/
For Canadian Main Street Program examples and results refer to http://www.pcs.gov.sk.ca/MSProgramHCF
19
White, 2013 study for Haldimand Norfolk identifies transportation as a significant challenge for those living in a rural area
needing access to health care and community services (pg. 22)
18
22
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See also, sample policies under Access to Recreation section
Part 6. Implementation and Measurement
Engagement
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Policies promote meaningful engagement in planning decisions to foster inter-departmental and public
understanding, dialogue and commitment.
All planning policies stem from a vision or set of guiding principles generated with a collaborative
engagement process involving stakeholders, community, staff and decision makers
For all transportation projects and all new developments, the municipality and/or applicant will engage
with a cycling and a pedestrian (or “Active Transportation”) Advisory Committee in addition to or in
combination with the Accessibility Advisory Committee. The committee will strive to include vulnerable
road users and people with lower rates of car ownership, e.g., seniors, physically disabled, women,
cyclists, trail user groups, people on a fixed income, students and children or youth representation F R
The municipality will provide accessible information to the public on the benefits of active
transportation related policies (i.e., reduced car dependence, compact density, sidewalks on both sides
of the road, appropriate parking policies, trails, etc.) F R
Community engagement on active transportation improvements is targeted at areas with higher
concentrations of vulnerable road users (e.g., children, seniors and people with disabilities)20 F R
Evaluation & Indicators
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New developments are required to respond to sustainability indicators (e.g. density targets, mixed-use
development, proximity to A.T. networks, car share programs, LEED certification, open space, etc.) F R
The municipality tracks active transportation indicators (e.g., mode split, the reduction of vehicle miles
travelled and kilometres of walkways and cycle facilities) R
For new developments, the plan review processes (e.g., Secondary Plans, Site and Subdivision Plan
review) will ensure applicants pay special attention to design for accessibility21, pedestrians, cyclists and
transit users (where applicable) ideally in accordance with a Transportation Master Plan and design
guidelines22
A Transportation Demand Management (T.D.M.) strategy may be required for new developments
The municipality may engage in processes such as the Ontario Walk Friendly Community Awards or the
Bicycle Friendly Community Awards. Other more generic evaluation tools include www.walkscore.com
or Bike score http://cyclingincities.spph.ubc.ca/mapping-cycling-trips/tools-training/ F R
Zoning By-laws
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The municipality has zoning by-laws that are consistent with the Official Plan policies in that they
support compact mixed-use development to minimize travel distances between uses and to better
support walking and cycling for everyday travel.
20
Examples of engagement tools include iCANwalk checklists http://www.icanwalk.ca/ , the International Charter for
Walking www.walk21.com
and Ontario’s Walk or Bike Friendly Communities Awards
21
The Ontario Ministry of Municipal Affairs and Housing, The Planning Act and Accessibility,
http://www.mah.gov.on.ca/AssetFactory.aspx?did=6861
22
Best practices for Ontario, see: Planning by Design, Ontario Professional Planners Institute
http://www.mah.gov.on.ca/AssetFactory.aspx?did=7171
23
Impact Studies
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23
An air quality and noise impact study will be required when applications are near a major roadway to
determine potential health impacts (e.g., especially for senior’s homes, residential uses, day care centers
and schools).
Ensure health impacts are part of any review process for new road projects including impacts on air
quality, noise, vibration, physical activity, farmland preservation, safety, etc. Consider utilizing a Health
Impact Assessment23 review for all major road proposals (e.g., road widening, highway extensions)
As outlined above under Land Use - Retail /Commercial, larger retail / commercial development
proposals will be required to demonstrate how they may impact existing retail commercial. Ideally the
municipality has a retail commercial strategy to outline the municipality’s capacity to absorb more retail
/ commercial uses.
An overview on Health Impact Assessments http://www.cdc.gov/healthyplaces/types_health_assessments.htm
24
2. Food Security
Community Food Security requires . . . a strategy for ensuring secure access to adequate amounts of safe,
nutritious, culturally appropriate food for everyone, produced in an environmentally sustainable way, and
provided in a manner that promotes human dignity. It features cooperation among all contributors in a
local/regional food system, including growers
and producers, citizen groups, community agencies, governmental organizations, businesses, academic
researchers and environmental advocates.
The food security strategies are based on those of the Ottawa Charter for Health Promotion and include:
□ building personal skills
□ strengthening community action
□ building healthy public policy (which includes land-use planning policy, the focus of this document)
□ creating supportive environments (including food safety ensured by monitoring and enforcement)
Food security addresses issues in the economic, environmental and social aspects of the food system, and thus
promotes adequate incomes for consumers and producers; local and diverse food production; environmental
sustainability; protection of local agricultural lands and fish habitat; widespread access to healthy food; and
food-based community economic development and social cohesion ( OPHA Food Security Workgroup, 2002)
i) Definition
The World Food Summit in 1996 defined food security as existing when: all people, at all times, have physical
and economic access to sufficient, safe and nutritious food that meets their dietary needs and food preferences
for an active and healthy life (World Food Summit, 1996 cited in Caldwell, 2011)
The Haldimand Norfolk’s Health Unit’s 2012 Health Info publication states, People are considered ‘food secure’
when they have access to sufficient, safe, nutritious food that is personally and culturally acceptable and they do
not live in fear of hunger or starvation. When people do not have enough money to afford healthy foods they are
considered to be food insecure. Food insecurity leads to poor health and higher health care costs. It can also
compromise learning in children and healthy pregnancies. Food insecurity is a serious Public Health concern
(Haldimand Norfolk Health Unit, 2012).
ii) Rationale: Why is food security important?
Healthy Eating
Healthy eating is essential for health and well-being. People who eat nutritious food are more likely to lead
longer, healthier lives (Ministry of Health Promotion, 2006). The availability of affordable healthy food increases
the likelihood that a person’s nutritional intake will be healthier.
□ Fewer than half of the County’s residents age 12 and older report eating the recommended number
of fruits and vegetables (five servings daily) (Feltracco and Harmon, 2011)
□ Over half of residents in Haldimand and Norfolk are overweight or obese and the number is growing.
The rates are higher than Ontario wide rates (2005 and 2008). Overweight or obese residents
25
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increased by 10.6% from 53.4% in 2005 to 64.0% in 2008 (Ontario was just 1.1%) (Feltracco and
Harmon, 2011)
Deaths from circulatory diseases (stroke, high blood pressure, and ischemic heart disease) are the
leading cause of death for residents of Haldimand and Norfolk and (40% of all deaths in 2005) and
they are on the rise. (Feltracco and Harmon, 2011).
Access to healthy food
There is abundant research on the importance of fresh food to individual health. Planning and transportation
policies can impact food security. Distance is complicated by development patterns that have concentrated
retail in areas outside of the more walkable urban areas where populations are concentrated. Smaller retailers
in the urban areas may be unable to compete and may close or repurpose their store as boutique retail. As a
result, everyday needs including food retail are often on the outskirts of town and may be accessible only by car.
Those without access to a car may be forced to travel on foot, by cab or public transit. For those living in more
rural areas of the Counties, distance to groceries almost certainly requires the use of a car. This can create
challenges, especially for older people who may at some point loose their ability to drive.
Recent research indicates that proximity to healthy food benefits health. Conversely, proximity to more
processed “fast food” results in poorer health outcomes24. Research also shows that those in greatest need
often face the biggest barriers25. Physical access to healthy food is a concern for lower income individuals and
families in rural areas like Haldimand and Norfolk counties. Without access to food outlets, such as grocery
stores, individuals and families may be forced to purchase food from smaller outlets such as convenience food
retailers, where healthy food choices tend to be limited and prices tend to be high (HNHU 2012). The food
environment has changed, including widespread availability and promotion of less healthy foods. The presence
and lower cost of these foods can influence consumption (OSNPPH, 2012).
Planning policies can help structure land uses so that populations that are more vulnerable have easier access to
fresh food. The section above on Active Transportation includes a discussion about the importance of planning
compact, mixed use communities that have routine destinations like a food store within walking distance or on a
transit line within walking distance.
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Public transportation in Norfolk County stops at supermarkets. Public transportation is not available
in Haldimand County (HNHU 2012)
In Dunnville, Caledonia, Simcoe and Port Dover there are areas that are both higher percent low
income and higher density that are located outside of the 1 km access zone to supermarkets (HNHU
2012)
Poverty
Poverty is the biggest barrier to food security. Those living in poverty are often forced to choose between paying
rent, other living expenses such as bills and clothing, and buying healthy food (Haldimand Norfolk Public Health
Unit Health Info publication, 2013).
24
The odds of being obese are significantly lower for people living in an area with a lower ratio of fast food restaurants and
convenience stores to grocery and produce stores near their homes (Spence et al. cited in Heart and Stroke Foundation,
2012)
25
Proximity to fresh foods: Research has demonstrated an association between “food deserts” – areas with limited access
to fresh groceries – and low socio-economic status neighbourhoods. Though access to supermarkets was also found to be
low for high socio-economic areas, lower-income people do not have the same level of car-ownership, and so are more
impacted by the presence of “food deserts” (Larsen K, Gilliland cited in Heart and Stroke Foundation, 2012)
26
For a growing number of people, food is so scarce that food bank use has reached its highest levels ever in
Ontario. The fastest growing groups using food banks are single mothers, senior citizens, the working poor,
university students and recent graduates. More than 412,000 people accessed food support programs each
month in 2012 according to a study by the Ontario Association of Food Banks. The report cites the province’s
cutbacks to social services, mass factory and plant layoffs, rising food and living costs, and droughts and floods in
rural Ontario as causes of the growing need (Kane 2012).
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Considered by pre-tax income in 2006, 5.5% of private households in Haldimand County lived below
the low income cut-off and 5.9% in Norfolk County. (Feltracco and Harmon, 2011)
11% of households in the combined counties were lone parent families in 2006 (16% in Ontario). Over
75% of the lone parent families in Haldimand and Norfolk were led by females (Feltracco and
Harmon, 2011)
In 2007, 5.7% of households in Haldimand and Norfolk counties combined were classified as “food
insecure” (Feltracco and Harmon, 2011)
The Haldimand Norfolk Public Health Unit estimates the cost of a healthy nutritious food basket (a
standard unit of measure) has gone up 8% between 2011 and 2012. This is the highest year-to-year
increase recorded. It costs on average, $800 per month for a family of four to eat healthy. (HNHU,
2012)
Building Community
There are other planning related considerations that impact food security on a more regional agricultural scale.
Caldwell (2011) identifies the following:
□ Water quantity and quality
□ Preservation of farmland from conversion to other uses / urban sprawl
□ Support for farms
□ Food production and distribution systems
Preserving agricultural lands for food growing is important to food security. Ontario has over 21,568 km2 of class
1 farmland which is more than half the total for the entire country (Statistics Canada, 1996 Agricultural Census
cited in Neill, 2003). That land is disappearing under urban expansion and sprawl. Between 1981 and 2003,
4,700 square kilometres (1 square kilometre every day) of prime agricultural land in Ontario was permanently
lost to development (Neill, 2003).
Haldimand and Norfolk counties are adjacent to Southern Ontario’s Greater Golden Horseshoe which is the
most densely populated area in Canada, with about 25 per cent of the country’s population. It is also one of the
fastest growing regions in North America. Another statistic states that land use changes in the region have
resulted in 16 % of prime farmland in the region being lost to urbanization (between 1996 and 2001) (Hemson
cited in Wilson, 2013)
Most municipalities are trying to reverse the trend with supports for intensification of existing urban areas (see
active transportation section) and “urban agriculture”. Agriculture and food production make up a large part of
Haldimand and Norfolk County’s culture and economy. This presents a natural opportunity to extend that
agricultural foundation into the urban areas for example, in the form of food gardens and green rooftops, local
food markets and food processing. Retired farmers for example, may move into town and become a resource
for such a strategy.
27
For those that are willing to supplement their food supply and/or create a socially rewarding community activity
with food gardening, they may not have access to a yard or they may face other barriers such as by-law
restrictions or simply a lack of awareness about the possibility of food gardening. County councillors and staff,
school boards and residents play an important role in supporting the creation of a community that is food
secure.
Developing a Food Strategy
Every municipality is unique. In order to get a better understanding of the issue and ultimately create supports
for overall food security, some municipalities are developing Food Strategies26. A food strategy can include
determining if existing planning policies might be altered to better support food security. There are numerous
other actions that can improve access to food. These cover a spectrum from emergency food (food banks) to
community gardens and farmer’s markets.
Both Counties have an inventory of their food assets and needs. Next steps may include looking at the overlap
between food deserts (geographic areas where residents’ access to affordable, healthy food is limited) and
populations that may face barriers to accessing food (e.g., seniors, children, low income) and setting out
strategies to improve access. The act of simply engaging in building a food strategy is one way of increasing
awareness about food security, county-wide needs and related planning policies27
This review is limited to land use planning policies however, a number of programs and policies will need to
come together to improve food security in the Counties. For a comprehensive analysis and recommendations,
refer to recent report s Where’s the Food completed by the Haldimand Norfolk Health Unit (2012) and Healthy
Communities Policy Review & Community Stakeholder Consultation for Healthy Eating and Physical Activity
completed by Healthy Communities (2012).
iii) Food Security: Sample Policies for Official Plans, Secondary Plans and
Trails Master Plans
Note: The following are examples of policies that can provide support for Food Security. An R or T has been
added to indicate that the policy can also be used to support Access to Recreation or Active Transportation.
Part 1. Vision, Strategic Directions or Goals
□
26
A Food Strategy is/will be developed to contribute to the Official Plan review process. It includes an
engagement process (including community, leaders, decision makers and municipal staff) to raise awareness
and ensure:
 People (especially populations facing barriers) are better connected to healthy food T
 People (especially populations facing barriers) have opportunities to grow and consume locally
produced food R
 Farming and food production is supported county-wide in both rural and urban areas
 Transportation systems are in place to connect people to food T
Vancouver’s food strategy is available at http://vancouver.ca/people-programs/vancouvers-food-strategy.aspx
28
□
□
All land use policies regarding agriculture, food related retail, open space / public food gardens (community
and allotment), and community supports shall reflect the goal of a County-wide Food Strategy R
See also Part 6. Implementation (below) regarding Food Strategy
Part 2. Transportation
□
□
□
Walkable access to affordable healthy food (including markets, food retail and community gardens) is
supported with mixed use zoning and compact community design R T
Policies reflect best practices literature which suggests that food is accessible, from a proximity perspective,
when residents live within 1Km of a retail food market such as a supermarket, grocery store, or produce
store (Gilliland & Larsen, 2008 cited in Where’s the Food) T
Walking, cycling and transit (where applicable) routes are planned to provide direct, affordable connections
between people and healthy food R T
Part 3. Urban Design
□
□
□
□
The municipality encourages and supports local food production or “urban agriculture” as part of
landscaped areas and roof tops (where feasible) on new and existing developments, especially for multi-unit
residential buildings and institutional buildings (schools, health care, and community centres) where people
might concentrate, organize and collectively manage the landscape, where appropriate servicing is available
R
Design guidelines are available to outline requirements and considerations necessary for urban agriculture
(e.g., community / allotment gardens, orchards, edible plantings). Guidelines include considerations for
growing including sun/shade, soil depths, land use records and soil testing, raised container gardening if
required, wheelchair accessibility, water supply, tool storage, meeting space, etc. R
The municipality encourages and supports healthy eating by limiting the number of food retailers who
primarily sell foods of low nutrient value based on community size and density of healthy food retailers. This
would ensure availability and accessibility of healthy foods is greater than unhealthy foods.
The municipality encourages the adequate provision of community facilities in conjunction with new
residential growth. Community facilities include but are not limited to such things as municipal recreational
facilities, institutional health care facilities, library and museum services, religious, educational facilities,
community food centres and related infrastructure including urban agriculture, community gardens, and
public spaces with edible landscapes. R
Part 4. Land Use Policies
□
□
□
Established urban growth boundaries and farmland preservation policies serve to protect existing
agricultural land uses and water supplies from new development
Existing publicly or community owned facilities (including schools and churches) will be permitted and
encouraged to accommodate other community based services where feasible and needed (e.g., emergency
food access satellites, community gardens) 28 T
Schools and/or churches that are deemed surplus will be encouraged to re-purposed for community uses
(e.g., recreation or a community food center) in higher density housing R
28
Halidimand Norfolk’s health unit produced the Where’s the Food report (2013) which raises the issue of food access
challenges especially for those in more remote rural areas.
29
□
□
□
□
□
□
□
□
□
Potential sites are identified for community and allotment gardens on for example, vacant lands or
institutional sites (e.g. schools, seniors buildings) 29 R
Small communities with only one fresh food grocery store will be considered for proactive strategies to
maintain a profitable economic environment for existing retail (see also Active Transportation, Part 4, Retail)
T
A Designated Permanent Agricultural Zone (PAZ)30 may be identified within urban areas
Community and allotment gardens are permitted where possible (as part of a food or recreation strategy) in
residential, multi-unit residential, institutional and parkland zones (with some exceptions such as natural
and protected areas) (Adapted from Waterloo and cited in Long, 2012) R
Farmer’s markets and farm-gate retail are permitted and supported to encourage locally-produced-food
retail and consumption
Small-scale food-based home industries and home occupations are supported (i.e. canning or where
feasible, small scale hen or rabbit keeping) (adapted from Simcoe Muskoka, cited in Long 2012)
Fast food retail is discouraged within a specified walking radius of elementary and secondary schools
Edible landscaping and rooftop gardens are encouraged in all land use designations (adapted from Simcoe
Muskoka, cited in Long 2012)
Policies supported that encourage healthy food in areas where access to food is limited. These include:
zoning and financial incentives for grocery stores and mobile food carts with healthy food choices.
Part 5. Parks and Open Space
□
□
Policies support community and allotment gardens where feasible in public parks and open space R
Policies encourage fruit bearing shrubs and trees where feasible in parks to facilitate food production and
“urban foraging” (see also Part 3. Urban Design above) R
Part 6. Implementation and Measurement
□
As outlined in Part 1. above, relevant land-use policies support a food strategy to provide an equitable,
comprehensive approach to improving food security in all land use policies. The strategy could include:
 Establishing an interdisciplinary Food Security advisory body (e.g. a Food Policy Council) with
dedicated staff to guide the strategy
 Building awareness about food security across the County
 The development of a higher level commitment such as a food charter
 Mapping food assets such as farmer’s markets, grocery stores, gardens, etc., to create a base line
and set targets for increasing neighbourhood food assets (e.g. Vancouver has targeted a 50%
increase in neighbourhood food assets31 by 2020)
29
Norfolk County (in particular Waterford) has expressed interest in developing land use policies that enable interested
parties to establish community gardens on vacant public land and at multi-unit dwellings, both counties support farmers
markets and sustainable agriculture (pg.25, Healthy Communities Partnership-Policy Review for Healthy Eating and Physical
Activity, 2012).
30
The City of Montreal has implemented a PAZ, much of that zone is occupied not by actual working farms, but rather by
schools, parks, golf courses, and an agricultural park. The lands within that zone are set aside to:
□ Preserve the rural character;
□ Promote agricultural tourism;
□ Improve farming activities which had until then been marginal in those areas
□ Maintain a sustainable and viable local food system. http://www.globalsiteplans.com/environmentaldesign/preserving-agricultural-land-on-montreal-island-canada
30

□
Mapping and monitoring of food deserts, concentrations of fast food (especially near schools) and
overlay this with mapping of more vulnerable populations (children, low income, seniors)
 Identifying opportunities to support food security with planned infrastructure and supportive bylaws for example, supporting new local food retail, identifying possible “food hub” locations for
storage and distribution and enhancing waste management systems to collect, compost and re-use
food waste (adapted from Waterloo, cited in Long 2012) R
 Identify opportunities to partner with private companies (land holders) to offer incentives in support
of community gardens i.e. on parking lots, vacant sites, unused open space around apartments, etc.
(adapted from Simcoe Muskoka, cited in Long 2012) R
Utilize all appropriate development review processes (e.g., Site and Subdivision Plan review, Retail Impact
Studies) to ensure developments improve access to food assets as described above ideally in accordance
with a food strategy and any walking, transit or cycling master plans R T
3. Access to Recreation
Planning policies can work in combination with a municipal recreation strategy to identify needs and locate
different sizes and types of parks and recreation facilities so that they are planned to ensure access for all
residents regardless of where one lives, age, income or ability. Increasingly trails, sidewalks and cycling
infrastructure are being seen as a critical component of a community’s planned physical activity infrastructure.
Municipalities that conduct recreation preference surveys often find that unscheduled, inexpensive, informal
activities are popular. Haldimand’s Strategic Master Plan for Leisure Services and Facilities (Montieth + Brown,
2006) reiterates these preferred characteristics. Walking and cycling often top the list. However, sidewalks,
pedestrian crossings and on-street cycling facilities usually fall under the municipal jurisdiction of the
Transportation or Works Department which have until more recently been focussed on moving cars and trucks.
Planning policies can help to ensure cycling and walking facilities are prioritized as both transportation and
recreation infrastructure. The section above on active transportation outlines how planning for a mixed-use
community can assist in reducing distances and promote more utilitarian trips using human power and as such,
compliment recreational forms of physical activity.
Planning policies can also assist in locating and building parks and community recreation facilities using the
Official Plan and other planning tools such as Community Improvement Plans or Secondary Plans. These plans
involve public and stakeholder engagement and can identify areas where recreation opportunities are few and
encourage facilities (including parks, trails, sidewalks, gardens and cycling facilities) to be built.
i) Definition
Recreation is an active, leisure-time pursuit that enriches the individual by improving health, developing a skill, or
building self-esteem. Access to recreation is supported when communities have formal and informal spaces and
facilities where people can participate in recreational activities. Cost, distance and transportation will not be
31
“Food Assets” from Vancouver’s Food Strategy (pg. 23) include: community composting sites , community food markets,
community fruit tree orchards, community gardens, community kitchens, farmers markets, street food vendors, urban farms
31
barriers to recreation spaces and facilities (Parks and Recreation Ontario, 2010). As outlined above, everyday
transportation using active modes (walking and cycling) can add a significant amount of daily physical activity
and as such can be considered part of a community’s recreation mix.
Typical barriers to physical activity include:
 Affordability
 Gender, age, education level and ethnicity
 Facilities may not meet current and future demands
Barriers that are specifically related to planning for recreation facilities include:
 Some adults prefer informal, unscheduled activities, (i.e., shift workers)
 Playing fields and other recreation facilities may not be available or are too far away.
 Lack of transportation to recreation facilities. Low-income individuals and families may not own vehicles.
 Parents may not let children participate in activities that require transportation.
 Bus systems are often inadequate and many neighbourhoods do not have bus routes, or appropriate
schedules.
 Low-income individuals or families may not have money for bus transportation.
 Walking and biking trails may not connect to form a viable transportation option to and from activities.
 Lack of places for both informal recreation and structured programs (Parks and Recreation Ontario,
2008, ActNowBC)
ii) Rationale: why is access to recreation important?
There is no shortage of research showing that approximately half of Canadian children and adults are not getting
the recommended daily amount of physical activity (Statistics Canada, 2011). Access to recreation opportunities
influences levels of physical activity.
When Haldimand and Norfolk County residents were surveyed and asked how many days in a typical
week they were active for at least 60 minutes per day, 28% of respondents reported being active every
day of the week. Approximately 50% were active at least five days a week, while 12% were not even
active for 60 minutes one day a week (Esbaugh, 2010).
Personal Health
Access to recreation facilities provides access to physical activity for Canadians. Recreation programs and
facilities have been linked with neighbourhood level social cohesion as well as increased physical activity
(Wellesley Institute, 2012). The benefits of physical activity for personal health are well documented and include
significant reductions in heart disease, strokes, diabetes, cancers. Physical activity protects against obesity and
helps develop bones, muscles, strength and endurance. It contributes to good mental health as well
(ActNowB.C.)
When surveyed approximately 40% of Haldimand and Norfolk County respondents felt that having trails
or pathways within a 5 - 10 minute walk or cycling distance of home could positively impact their
physical activity. 33.2% reported that having paved shoulders on both sides of the road could positively
impact their physical activity (Esbaugh, 2010).
32
Having recreation facilities nearby supports higher levels of physical activity
Fewer nearby recreation facilities results in greater chronic disease health risks (i.e. diabetes and heart disease).
Inequality in the built environment (where recreation facilities are not distributed according to need) is linked to
low rates of physical activity and higher rates of obesity. Further studies indicate that the greater the number of
nearby recreation activity facilities there are in a given area, the lower the risk of adolescents being over weight
(Gordon et al., 2006).
Regarding children’s health, access to parks and recreation facilities can provide well over 20% of a child’s daily
physical activity requirement. Safe walking and cycling routes are as important. A child comes close to receiving
100 % of their required daily physical activity when proximity to parks is combined with school activity breaks,
physical education and walking or cycling to school (Basset et al. quoted in Active Living Research, 2013).
Areas that are more likely to be in need of recreation facilities are those with higher density multi-unit
apartment buildings where yard space is limited and there are more people concentrated in one area. Sparsely
populated rural areas will also have higher needs. Municipalities have begun to map out recreation resources to
help identify gaps32
Social inclusion
Providing a variety of places and facilities for people to come together enables people to meet and interact. In
this way community ties are strengthened. Social inclusion occurs when resources and opportunities are
equitably distributed to enable people to live comfortably, to take part in society and to feel that they are valued
and respected members of the community (Act Now B.C.).
Cost Savings of Physical Activity



Physical inactivity costs Canadians an estimated $5.3 billion annually in health care costs.
The Ontario Medical Association estimates current health care spending to be absorbing 46 cents of
every provincial tax dollar and the number is rising. Health Canada estimates that for every $1 invested
in physical activity alone, there is a long-term savings of $11 in health care.
Sedentary Canadians are 60% more likely to suffer from depression than physically active Canadians
(ActNowBC).
Determining long term recreation needs and preferences
Municipalities need to identify a range of recreation opportunities to ensure facilities meet the needs of their
residents. For example, considerations should include age specific facilities for active recreation, e.g., skateboard
parks, mountain bike skills parks and facilities for more passive activities, shade, natural settings, places to sit
and providing access to water fountains and washrooms for example. One of the biggest challenges is reaching
people in rural and more remote settings. One study done for Haldimand Norfolk indicated that a simple, self
directed walking program was effective for rural women - highlighting the importance of having a safe road or
trail to walk along throughout the seasons. The same study cited the importance of utilizing existing assets such
as schools and trails as Good Practices in Minimizing Rural Health Challenges (White, 2012)
Some municipalities set out recreation strategies to identify barriers and guide policy decisions. However, many
municipalities (about 80%) don’t have a formal strategy for physical activity and sport opportunities (Canadian
32
For example, see Grey Bruce Recreation Opportunities Map on Slide 46 at the following link
http://www.healthycommunitiesconference.com/Grey-Bruce_Report_Final.pdf
33
Fitness and Lifestyle Research Institute 2010). Decision makers, county staff, school Boards and residents play
an important role in supporting the creation of communities that support access to recreation.
iii) Access to Recreation - Sample Polices for Official Plans, Secondary
Plans and Trails Master Plans
Note: The following are examples of policies that can provide better support for Access to Recreation. This
section includes policies that can also be used to support Food Security and Active Transportation. An F or T
have been added to indicate that the policy can be used to support Food Security or Active Transportation in
addition to Access to Recreation.
Part 1. Vision, Strategic Directions or Goals
□
□
□
□
□
□
A Parks and Recreation Master Plan will guide the location and development of parks and recreation
facilities including trails to ensure the community is provided with safe, affordable and diverse
recreation programs and facilities for all residents and visitors regardless of age, ability or income. The
plan includes a recreation needs assessment and will identify recreation assets and strengths (natural
and constructed) along with gaps
The Official Plan policies will incorporate and/or reference any findings from a Recreation Master
Planning exercise
Recreation activities are broadly interpreted and include cycling, walking and other forms of active
transportation and as such, planning for recreation facilities includes considerations regarding sidewalks,
accessibility, bicycle facilities (on and off-road) and trails T
Neighbourhoods that are experiencing higher barriers to physical activity (i.e., seniors, lower income,
rural) will be prioritized for recreation facilities improvements including trails and active transportation
infrastructure F T
Parks and open spaces include active and passive uses and cater to local neighbourhoods as well as
visitors and tourists
Parks contribute to social interaction and civic pride with places to meet and interact
Part 2. Transportation
□
□
□
□
As outlined in the Active Transportation (AT) section, access to AT supports will increase physical
activity levels. Transportation policies recognize the significant contribution that AT can make towards
increasing levels of physical activity for all ages and as such the transportation policies prioritize safe and
attractive AT networks T
Trail networks, destinations and connectors enable trails to function as both recreation and active
transportation infrastructure F T
Trails policies set out minimum desired distances between residential areas and on and off-road trails
Recreation and active transportation infrastructure will meet standards outlined in the Accessibility for
Ontarians with Disabilities Act33 F T
33
Studies indicate that lower income neighbourhoods typically have fewer and lower quality pedestrian amenities
(sidewalks, parks, pathways, etc.). In neighbourhoods that had streetscape adaptations and resources for people with
34
□
Refer to section on Active Transportation above for more detailed policies regarding transportation.
Part 3. Urban Design
□
□
□
□
□
As outlined in the Section on Active Transportation, all streets should be complete to provide for active
modes of transportation. In this way, shorter trips can become an inexpensive, unscheduled opportunity
for physical activity T
Design guidelines for parks and streets will ensure other amenities are included such as way finding
signage, benches, lighting, shade structures and shade trees, waste receptacles and other furnishings
that improve safety and comfort and encourage use T
Crime prevention is a consideration when designing parks and streetscapes http://www.cptedontario.ca
T
Design guidelines are available to outline requirements and considerations necessary for urban
agriculture (e.g., community / allotment gardens, orchards, edible plantings) in parks and open space
(including institutional uses such as schools and seniors residences) F
Civic parks and squares are integrated with streetscape planning and design to encourage activity in
urban areas and create attractive and comfortable spaces located in areas where people may
concentrate in larger numbers
Part 4. Land Use Policies
□
□
□
□
□
□
□
□
All recreation resources including schools, trails (urban and rural, on and off-road), parks, gardens and
recreation facilities will be identified in an inventory as part of a Recreation and Parks Master Plan F T
Areas lacking in recreation facilities will be identified and strategies put in place to retain or obtain land
for future recreation opportunities
New developments are encouraged to locate in areas that have easy access to a range of recreation
amenities, especially for higher density residential and institutional uses
New developments will be required to provide recreation facilities to meet the local needs of any new
development. Parkland dedication requirements and any exceptions will be identified34
All land uses will strive to provide easy access to active transportation by connecting walkways and
cycling infrastructure and by providing urban design features such as benches and bike racks (see 1. iii)
Part 3. above) T
Parks uses will include a wide range of recreational activities according to identified needs. In addition to
traditional parks uses (play grounds and sports fields) uses shall include supports for food security (e.g.,
food gardens, farmers markets) and active transportation (e.g., trails, accessible walkways) F T
Green roofs that support recreation needs may be considered as a contribution to parkland dedication
(or cash in lieu) Reference: http://www.mah.gov.on.ca/Page6849.aspx F
Parks will be classified according to facility type and population to be served and, to maximize
accessibility, will be provided within a specified minimum distance of residential areas35
disabilities, people with disabilities were more likely to engage in leisure time physical activity. (Grant et al. cited in Heart
and Stroke Foundation 2012)
34
Kitchener Ont. has the following policy, “For residential development the City will require parkland dedication based on
5% or 1 hectare per 300 residential units, whichever is the greater.” LINK See also Ministry of Community and Social
Services, Victoria B.C. (p. 13)
35
Part 5. Parks and Open Space
□
Refer to Parts 1 & 4 above
Part 6. Implementation and Measurement






Recreation preferences and barriers are identified using demographics and various community
engagement tools (e.g. surveys, focus groups) to inform an overall Parks and Recreation Master Plan
A Parks and Recreation Master Plan is in place. It incorporates active transportation infrastructure as
well as a variety of parks and recreation facilities and programs to meet the population’s recreation
needs and preferences. F T
Parks and recreation facilities (including active transportation infrastructure) are mapped and
underserved areas are targeted for parks and recreation improvements F T
Planning tools such as Community Improvement Plans and Secondary Plans may be used to target
recreationally underserved areas
Up to date user data is collected and facilities are evaluated on regular basis
The development application process sets out a number of planning tools (subdivision plans, site plan
review) to assist in the acquisition of park land and recreation facilities. Policies regarding residential
and non-residential (industrial, commercial) park land dedications including Cash-in-Lieu of Parkland
Dedication shall be clearly articulated to ensure fairness and certainty36.
35
Municipalities can determine their own targets and standards, for example, Hamilton Urban Areas Neighbourhood Parks
targets will be 0.7 ha/1000 people and within 800 meters, Community Parks: 0.7 ha/1000 & 2 km, Rural areas City Wide
Parks 0.7 ha/1000 & n/a
36
For sample parkland dedication best practices refer to: Park Land Acquisition Best Practices Guide, Ministry of Community
Services, Victoria B.C http://www.cscd.gov.bc.ca/lgd/intergov_relations/library/Parkland_Acquisition_BPG.pdf
36
Section 4. Summary and Conclusions
Table 3. A summary of policy supports
This table summarizes the more detailed policy review tables using key policy indicators drawn from the detailed
analysis.
Y = policies in place
applicable
N = policies not evident
S = some evidence but could be strengthened
o = not
Plans Reviewed
Health Considerations and related
policy directions
ACTIVE TRANSPORTATION (A.T.)
Vision - Commitment to health &
sustainability
Complete communities (compact, mixed
use) policies in place
Complete streets policy in place
Transportation Master Plan identified
Active Transportation (A.T.) policies
(including on-street facilities and
sidewalks) identified
Reducing car-dependence identified as a
goal
Transit Plan in place
Transportation & air quality / climate
change references
Schools locating policies identified to
support A.T.
Design Standards for walking and cycling
facilities
Traffic calming / alternative road design
standards
Policies commit to accessible
infrastructure
Urban Design policies to calm traffic,
shape buildings and streetscapes and
support AT
Parking study in place and referenced in
plans
A.T. targets & indicators identified
Haldimand
Official
Plan
Haldimand
Trails
Master
Plan
S
Y
Y
Norfolk
Official
Plan
Norfolk Trails
Master Plan
Norfolk LSPA
Secondary
Plan
Y
Y
Y
o
Y
o
Y
N
N
S
N
N
Y
N
N
S
N
N
Y
S
N
S
N
Y
S
Y
Y
N
N
o
Y
S
S
o
Y
N
Y
S
o
S
o
N
S
Y
N
N
S
S
N
S
S
S
Y
Y
Y
Y
Y
S
o
S
o
S
Y
N
N
N
S
N
S
N
S
Y
37
Makes reference to A. T. advisory
committee
ACCESS TO RECREATION
Recent Recreation Vision and Master Plan
is referenced
“Recreation” includes Active
Transportation
Open space system includes reference to
active transportation networks
Parkland dedication includes trails
Recreation targets & Indicators identified
Makes reference to recreation advisory
committee
FOOD SECURITY
Food Strategy (Vision and Plan) identified
Retail Commercial Studies required for
new large format developments
County-wide commercial/retail strategy
in place
Growth boundaries and policies in place
to preserve farmland
Land use policies to support urban
agriculture
Organics recycling & re-use policies in
place
Food security targets & Indicators
identified
Makes reference to Food Working Group
N
Y
N
Y
S
N
N
S
N
N
N
Y
S
Y
Y
S
Y
S
Y
Y
Y
S
N
Y
N
N
Y
S
N
Y
N
N
Y
N
N
N
Y
N
o
N
Y
N
o
N
N
N
o
N
o
o
Y
o
Y
o
Y
N
o
N
o
N
N
o
N
o
N
S
N
S
N
N
N
N
N
N
N
38
Conclusions
Both municipalities emphasize strengthening their recreation trails and walking facilities. These networks can be
planned together to connect people to everyday needs and offer a healthy alternative to driving for shorter
trips. The new work will rely on both on and off-road facilities and it should incorporate everyday travel to
destinations like food stores, schools and recreation facilities. Currently, recreation and parks policies do not
include roads and sidewalks. And transportation policies tend to prioritize motor vehicle movement over
walking and cycling. An active transportation plan can help pull these issues together under one strategy. And
an overarching Transportation Master Plan would set the necessary context for an Active Transportation Plan. It
could for example include:
□ Emphasizing a “discuss and decide” (i.e. car dependence, sustainable mobility) rather than a “predict
and provide” approach to transportation planning
□ Include quality of life, affordability (individual and municipal) and sustainability considerations
□ A strategy to reduce impacts of long commutes (e.g., Barrie’s Telecommuting Project, good internet
supports, car pooling supports)
□ Support a Public Transit Feasibility and Planning Study
□ Incorporate various streetscape plans (completed and in progress) and include / update cycling
infrastructure designs to reflect best practices
Having food or recreation within walkable distances will rely on planning policies that protect the mixed-use
downtowns and will require new developments to locate in the Urban Areas in forms that are compact and
mixed use. Policies that discourage large, single-use developments located on the periphery of the Urban Areas highway commercial and large format retail - will help to reduce car dependence. In the short term, determine
how safe, direct and pleasant walking, cycling and transit links can be made to existing everyday destinations
that may be difficult to access (e.g., shopping on Queensway East and West in Simcoe). Then set planning
policies in place to improve walking, cycling and transit access to these areas. In more rural areas, trails
(including paved shoulders) may play an increasingly important role for recreation and transportation where
mobility, recreation and food access are more of a challenge for those without access to a car. Satellite food
access hubs may be another option. Solutions will rely on collective strategies and creative programming but
planning can help identify areas of higher need and help modify any land-use restrictions that may be in place.
Having good policies is the first step to achieving active transportation, food security and access to recreation. It
is just as important that decision makers at municipal and school boards, developers and residents support the
implementation of the policies
Recreation and Leisure policies should be based on a recent Parks and Recreation Master Plan. Both counties
appear to be ready for updates. Any potential engagement process to develop the updated plan will provide an
excellent opportunity to bring various staff and decision makers together with the public to raise awareness
about needs and preferences and set out priorities for programs and infrastructure. Planning policies can reflect
the study outcome.
Regarding food security, both counties have strong agricultural traditions and economies. Policies set out
supports for farming, agricultural land and water protection, farm-gate retail and farmer’s markets. The policies
do not address food security in terms of ensuring people can access food (i.e. without a car) or access food
growing opportunities in gardens and on roof tops of existing or new developments. Any existing policy barriers
may fall under the provision of by-laws. The Official Plans and Secondary Plans can start to include references to
food security and related land uses (i.e. community gardens in parks).
39
Regarding the terminology in planning policies, municipalities can express their support for active
transportation, food security or access to recreation with strong, clear language in the Official Plan. For example
“traffic” can include pedestrians and cyclists but in this example the policy is often regarding motor vehicles
only. A definition of traffic could help. In addition, words such as “may” (i.e., . . . require sidewalks on both
sides of a road) can be replaced with a more affirmative “shall”. And policies can outline exceptions; for
example, stating the conditions under which a road will not be required to have sidewalks on both sides of a
street. Another example is to clarify the conditions under which cash-in-lieu of a park land is acceptable37.
Detailed studies help clarify policy directions. Haldimand County has a number of streetscape plans and a
parking study which don’t appear to be referenced in the Official Plan. Norfolk County appears to have no urban
design studies or parking studies for the county as a whole. When updating the plans, ensure these detailed
plans are cross referenced or, if none exist, when they might be developed.
The issues of transportation, food security and recreation have the potential to pull together various disciplines
and departments (i.e. on a study advisory or policy council). Any further studies will include demographics and
identifying areas of higher need. Building and sharing inventories of active transportation resources, recreation
assets and food assets can help to identify barriers and opportunities with the various stakeholders.
Finally, the policies are effective if they are up to date, understood and upheld by decision makers and the
general public. Active transportation, food security and access to recreation are concepts that can be promoted
by networking, engaging the community and partnering where possible. Build on the opportunities to update
the policies (including Official Plan reviews, re-zonings, environmental assessments) by promoting meaningful
public engagement and highlighting how the policies directly affect health, equity and quality of life for people in
the counties. To compliment this type of policy review Healthy Canada by Design recently produced a series of
fact sheets outlining further actions. They are available at the Healthy Canada by Design website
http://www.uphn.ca/CLASP/tools_resources.htm
37
Using the example of active transportation, TCAT (2012) explains, “strong direct language should be used (i.e., ‘must’ or
‘will’) for implementing cycling, pedestrian, and transit networks.” In addition, policies need to describe “a clear process for
defining and granting any exceptions to accommodating all road users.”
40
Bibliography
Documents Reviewed

□
In full
In part (for material related to active transportation, food security or recreation)
Norfolk County

Norfolk County Official Plan http://www.norfolkofficialplan.ca/

Norfolk County Trails Master Plan
http://www.norfolkcounty.ca/wpcontent/uploads/2011/06/norfolk_county_trails_master_plan_2009.pdf

Norfolk County Secondary Plan “Lakeshore Special Policy Area (SPA)
http://www.norfolkofficialplan.ca/lakeshore/
□
Norfolk County trail maps http://www.norfolkcounty.ca/living/parks-and-recreation/norfolk-countytrails/
□
Norfolk County Economic Development Strategy: http://www.norfolkcounty.ca/business/strategy/
Haldimand County

Haldimand County Official Plan http://www.haldimandcounty.on.ca/OurCounty.aspx?id=38

Haldimand County Trails Master Plan
http://www.haldimandcounty.on.ca/uploadedFiles/Residents/Parks_and_Recreation/Facilities/Hald
imand%20TMP_final%20report_June2009.pdf
□
Haldimand County Strategic Directions
http://www.haldimandcounty.on.ca/uploadedFiles/Our_County/About_Haldimand_County/Countys
_Official_Plan/Strategic%20Directions.pdf
□
Lakescape Action Information
https://www.haldimandcounty.on.ca/OurCounty.aspx?id=15587
□
Dunnville Secondary Plan
https://www.haldimandcounty.on.ca/OurCounty.aspx?id=17896
□
Hagersville Streetscape Plan
http://www.haldimandcounty.on.ca/uploadedFiles/Our_County/Projects_and_Initiatives/Hagersvill
e_Streetscape_Plan/20101007%20-%20Presentation.pdf
□
Jarvis Streetscape Plan
41
Haldimand and Norfolk Counties

Esbaugh J., Addressing Rural Health Needs - Walkable Communities in Haldimand and Norfolk,
Central West Ontario Health Units & University of Waterloo Survey Research Centre, 2010
http://www.hnhu.org/images/stories/reports/walkable_communities_web.pdf
□
Feltracco, A. and Harmon S., A Roadmap for Health in Haldimand and Norfolk: Together We Can
Turn the Curve Haldimand-Norfolk Healthy Communities Report. Simcoe: Haldimand-Norfolk Health
Unit. 2011
http://www.hnhu.org/images/stories/reports/A_Snapshot_of_the_Haldimand_County_and_Norfolk
_County_Communities_2011web.pdf

Haldimand Norfolk Health Unit, How Much Does Healthy Eating Cost in Haldimand and Norfolk
Counties? Nutritious Food Basket Results, 2012 http://www.norfolkcounty.ca/media-releases/costof-healthy-eating-rises-8-in-haldimand-and-norfolk/

Healthy Communities Partnership Haldimand and Norfolk, Healthy Communities Policy Review for
Healthy Eating and Physical Activity, March, 2012
http://www.hcphn.com/images/resources/hn_policy_review_final_report_may_%202012.pdf

http://www.haldimandcounty.on.ca/uploadedFiles/Our_County/Projects_and_Initiatives/Jarvis_Str
eetscape_Plan/Jarvis%20Streetscape%20Plan%20-%20Final%20-%20January%202013.pdf
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45