Economic Development & Tourism Research Paper - County of Elgin

Economic Development & Tourism 

Research Paper 

County of Elgin 

June 2011 

Final draft 

Prepared with the assistance of

Table of Contents 

1.0  INTRODUCTION ...........................................................................................4  

1.1  Purpose, Objectives and Structure of Research Papers .........................................3  

2.0  THE ECONOMY AND TOURISM ...........................................................................4  

2.1  Global and Local Economic Trends .................................................................4  

2.2  Analysis of Elgin County Economic Potential......................................................7  

2.2.1  Historical Growth Trends in the Area ............................................................7  

2.2.2  The Economic Base of Elgin .......................................................................9  

2.2.2.1  Economic Base and Community Base Economic Activities in Elgin........................9  

2.2.2.2  Elgin’s Economic Base ......................................................................... 11  

2.2.2.3  Elgin’s Economic Base by Municipality ...................................................... 12  

2.2.2.4  Implications for Elgin’s Future Economic Base............................................. 13  

2.3  Tourism ............................................................................................... 14  

2.3.1  Provincial Tourism Trends ....................................................................... 14  

2.3.2  Tourism in the “Three Counties” (Elgin, Haldimand & Norfolk) ........................... 14  

2.3.3  Tourism Trends in Elgin County ................................................................. 15  

2.3.4  Cultural and Heritage Tourism .................................................................. 16  

2.3.5  Agri-tourism........................................................................................ 17  

2.3.6  Culinary Tourism .................................................................................. 18  

2.3.7  Ecotourism and Geotourism (Sustainable Tourism) .......................................... 19  

3.0  PROVINCIAL POLICY & COUNTY INITIATIVES........................................................ 20  

3.1  Provincial Legislation and Policy .................................................................. 20  

3.1.1  Planning Act ....................................................................................... 20  

3.1.2  Provincial Policy Statement ..................................................................... 21  

3.1.3  Provincial Rural Plan – 2007 Update ........................................................... 25  

3.2  SCOR – The Path Forward – Strategic Management Plan (2009 – 2010)...................... 26  

3.3  County Plans and Studies........................................................................... 29  

3.3.1  County of Elgin Economic Development Plan (2007-11) .................................... 29  

3.3.1.1  County Official Plan Considerations ......................................................... 32  

3.3.2  County of Elgin Marketing and Branding Strategy (2008-11) ............................... 32  

3.3.2.1  Vision, Key Assets and Goals .................................................................. 32  

3.3.3  County of Elgin Agriculture and Agri-business Sector Profile – July 2009 ................ 33  

3.3.4  Elgin and St. Thomas Labour Force Development Strategy................................. 34  


3.3.5  Elgin/St. Thomas Tourism Development Strategy And Marketing Plan – Final Report.. 36  

3.3.5.1   Strategies & Actions ........................................................................... 36  

3.3.5.2  Elgin County Savour Elgin Trail ............................................................... 37  

3.3.5.3  Ports of Elgin County........................................................................... 38  

3.3.5.4  Railway Capital of Canada .................................................................... 39  


3.4  Public Consultation.................................................................................. 39  

3.4.1  County Tour........................................................................................ 40  

3.4.2  Technical & Steering Committee Meetings ................................................... 40  

3.4.3  Public Focus Group ............................................................................... 40  

3.5  Summary .............................................................................................. 41 

4.0  DISCUSSION.............................................................................................. 42  

5.0  CONCLUSION ............................................................................................ 49 

1.0 INTRODUCTION 

One’s quality of life depends on a number of factors. A strong and diversified 

economy is one of the factors that can lead to enhanced opportunities for people to 

earn a living wage. Part IV of the Provincial Policy Statement sets out a vision for the 

Province’s Land Use Planning System stating that “the long-term prosperity and social 

well-being of Ontarians depend on maintaining strong communities, a clean and 

healthy environment and a strong economy”. 

As noted in the County’s Economic Development Plan prepared in 2007, while it has a 

long history of agricultural and railway activity, the County “has developed a solid 

industrial base focused on manufacturing that has included Ford of Canada, Steelway 

Building Systems and until recently Imperial Tobacco”. Between 

1993 and 2000, “the Canadian manufacturing sector grew 

steadily, which was a result of a weak Canadian dollar” (Elgin 

County Economic Development Plan). However, Canada and the 

rest of the world have been impacted by a major economic 

downturn, and a more recent partial recovery. In addition, the 

more recent increased value of the Canadian dollar, relative to 

the US dollar, has impacted Canada’s manufacturing sector. The recession was 

particularly devastating for automobile assembly and parts operations, one of the 

mainstays of Elgin’s economic base. Also, the closure of the Imperial Tobacco plant a 

few years ago had a significant impact on the community. Ontario and Elgin County 

are now in a period of transition, moving from a manufacturing-based economy to a 

service-based economy. 

However, the County has responded by creating an Economic Development Office, 

Economic Development Plan and a series of other plans and strategies to set a course 

for local economic recovery and prosperity. The County has taken advantage of a 

number of new opportunities to strengthen and diversify the local economy, including 

the promotion of agri-businesses such as the ethanol plant in Aylmer and tourism 

initiatives. Elgin County is well on it’s way in the area of tourism promotion through a 

number of tourism-related initiatives and programs, 

including the introduction of ElginTourist.com website 

and the opening of the Elgin – St. Thomas Small Business 

Enterprise Centre. In 2010, the Elgin County Economic 

Development office was awarded an Honorable Mention 

for Excellence in Economic Development for their 

County Community Profile. Elgin County is already the 

home for a wide range of accommodations, restaurants, 

parks, tourism destinations, etc. as shown on the Savour 

Elgin Plan attached as Appendix 1 to this report. 

Elgin County has also embarked on a program to develop the County’s first ever 

Official Plan, a policy document that sets out long-term goals and objectives for how a 

community wishes to grow and develop. This long-range document will be based on a 

planning horizon for the next 20 years and address matters of County importance while

acknowledging local planning authority and the need to provide a balanced approach 

to planning in the County. Through the County’s first Official Plan, Provincial and 

County policies and initiatives for economic development and tourism can be 

implemented. But in addition to implementation, the County Official Plan can provide 

policy direction for the building of communities to meet economic development 

objectives. According to the Municipal Quality of Life for Economic Prosperity 

Handbook released by the Ministry of Municipal Affairs and Housing in 2005, quality of 

life is seen as an “essential ingredient for economic growth, competitiveness and 

prosperity”. To build on ‘sense of place’ and enhance quality of life, the Ministry 

suggests “strengthening community assets through revitalization and rehabilitation of 

commercial or residential areas, returning former industrial lands to productive uses, 

historic building conservation or taking a leadership role in the arts and culture 

sectors. By investing in the preservation and enhancement of natural, social, cultural 

and physical features, municipalities can distinguish themselves and add to their 

uniqueness”. 

Elgin County consists of seven local municipalities: 

• Town of Aylmer 

• Municipality of Bayham 

• Municipality of Central Elgin 

• Municipality of Dutton/Dunwich 

• Township of Malahide 

• Municipality of Southwold 

• Municipality of West Elgin 

The City of St. Thomas is geographically located in Elgin County but is a separated 

City. The County has committed to ongoing discussions and exchange of ideas with the 

City throughout the Official Plan process. 

The main purpose of an Official Plan at the County level is to provide general direction 

and guidance on a broad basis by establishing an upper tier policy framework that: 

• provides guidance to the local municipalities in the preparation of 

local Official Plans and Zoning By-laws 

• facilitates coordination and cooperation amongst the local 

municipalities and the County on planning and development issues 

that transcend municipal boundaries 

Once the County Official Plan is approved, which is expected in 2012, Elgin County will 

become the approval authority for local Official Plans, Subdivision and Condominium 

Plans. This responsibility will be delegated to the County from the Province of Ontario. 

Having such approval powers at the County level will expedite the approval process 

and bring decision-making closer to our local municipal partners. 

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Economic Development and Tourism June 2011

1.1 Purpose, Objectives and Structure of Research Papers 

Research Papers have been prepared to summarize relevant policy and legislation, 

background information and findings through consultation to inform the County 

Official Plan process. The 6 Research Reports are as follows: 

1. Population, Employment & Housing 

2. Economic Development & Tourism 

3. Transportation, Servicing & Waste Management 

4. Cultural Heritage and Urban & Rural Design 

5. Agriculture 

6. Mineral Aggregates & Petroleum Resources 

Natural & Human Made Hazards 

Source Water Protection & Groundwater 

Natural Heritage 

Following this Introduction section, this Paper is divided into 3 sections and a 

Conclusion section. 

Section 2 provides an overview of the state of the economy in Elgin County by 

discussing global and local economic trends, issues and potential opportunities; 

providing an analysis of Elgin’s economic base; and discussing the economic potential 

of the County. This section also defines various types of tourism, and identifies 

tourism trends at the Provincial, regional and county levels. 

The Planning Act and the Provincial Policy Statement provide policy direction intended 

to ensure the provision of employment and the protection of the financial and 

economic well being of the Province. The County has prepared an Economic 

Development Plan and a number of other studies and initiatives to address economic 

issues and opportunities in Elgin. The purpose of Section 3 of this Paper is to provide 

a detailed overview of relevant Provincial legislation and policy, and County plans and 

studies in order to identify economic development and tourism related goals, 

objectives and policy requirements to be considered in preparing the County’s Official 

Plan. Section 3 will also provide a summary of economic issues and potential 

opportunities and strategies identified thus far through the consultation process. This 

section will then conclude with a summary of policy themes (based on the policy 

requirements, goals, objectives and recommendations discussed) that should be 

considered in preparing the County’s Official Plan. 

The purpose of Section 4 is to identify possible Official Plan implementation 

approaches with respect to the policy themes discussed in Section of the Paper. In 

discussing possible approaches, we will reference economic and tourism policies in the 

Official Plans (OPs) of Counties adjacent to Elgin County and other selected Counties 

and regions. 

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2.0 THE ECONOMY AND TOURISM 

The purpose of this section is to identify global and local economic trends, and provide 

analyses respecting Elgin’s economic base and the economic potential of the County. 

In addition, this section will discuss tourism trends at the Provincial, regional and 

county levels. Lastly, this section will provide a discussion respecting various types of 

tourism activities and sectors relevant to Elgin. 

2.1 Global and Local Economic Trends 

The Elgin and St. Thomas Labour Force Development Strategy, dated February 26, 

2010, was prepared by Millier Dickinson Blais and was funded by Employment Ontario. 

The Strategy identifies a number of global trends that are impacting local economies. 

A number of local economic trends and issues are also identified in the County 

Economic Development Plan (2007-11). The following is a summary of these trends 

and issues. 

a) The Role and Structure of Manufacturing is Shifting 

Changes in the traditional model of trade and international competition is 

changing where and how products are made. Despite these changes, the 

manufacturing sector continues to be important in Ontario and to communities 

along the Windsor-Montreal corridor. In a referenced BMO Capital Markets 

Report that explored the long term future of Canadian manufacturing, it was 

suggested that certain sub-sectors will be facing the deepest restructuring 

including: tobacco, textiles and clothing manufacturing; paper and wood 

products including furniture, rubber and plastic products; motor vehicle and 

parts manufacturing; and other transportation equipment manufacturing. The 

impacts of numerous lay-offs and closures in the area have been significant and 

for the most part, the lost jobs have consisted of high-paying jobs that require 

minimal formal education. The 2007 closure of the Imperial Tobacco facility in 

Aylmer resulted in significant job losses. Other cited job losses include 1500 at 

Ford Talbotville, 2000 at Sterling Truck, 350 at Therm-O-Disc, 120 at Shulman 

and 725 at Formet. 

The BMO Report also suggested that manufacturing growth in the future will be 

focused on four broad types of activities: 

1. design and engineering work 

2. fabrication of higher value–added knowledge-intensive goods 

3. fabrication of goods that are not easily/economically shipped long 

distances 

4. fabrication of semi-processed, resource-based goods exported for 

further processing in low-cost jurisdictions such as China 

It is suggested in the Elgin and St. Thomas Labour Force Development Strategy 

that the dominant employers locally are in manufacturing, health care and 

social assistance, and retail trade. In addition to anticipated growth in health 

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care and social assistance, the Strategy projects continued growth in 

educational services; other services; professional, scientific and technical 

services; public administration; culture, arts, entertainment and recreation; 

and construction. 

b) The Green Economy is Creating New Products and Services 

As noted in the County’s Energy and Environment Sector Profile report, 

‘renewable energy’ is defined as “energy generated from natural resources 

such as sun-light, wind, rain, tides and geo-thermal heat – which are naturally 

regenerated”. The Sector Profile cites international 

data that concludes that growth in ‘new renewables’ is 

expected to continue, and in particular for Canada, in 

the solar and wind energy sub-sectors. For example, 

Humber College data cited suggests that the wind 

industry in Canada will grow from 300 employees in 

2002 to 13,000 in 2012. 

The trend in green construction appears to be focused on the retro-fitting of 

buildings to improve energy efficiency and therefore, there will be increased 

demand for individuals skilled in the building, finishing or renovation areas. 

Areas of specialization in Canada also include water and wastewater 

treatment, industrial and hazardous waste treatment, solid waste management 

and recycling, site remediation and brownfield redevelopment and energy 

conservation. 

As noted in the Sector Profile, a number of existing businesses (listed below) 

demonstrate Elgin County’s capacity and potential for growth in the ‘green’ 

sector. 

A) First Solar Inc. is recognized as one of the world’s leading manufacturers of PV modules 

and provider of renewable energy through its large-scale solar farm. First Solar has one 

project which is partially located in Elgin County near Belmont. 

B) Koolen Electric is a small company that installs Geothermal heating systems, utilizing 

ground source heat pumps which draw energy from shallow ground. 

C) The Integrated Grain Processors Co-operative Ethanol Plant is owned by the Integrated 

Grain Processors Co-operative and employs over 40 people. The Aylmer plant processes 

corn plant material to produce substantial amounts of denatured fuel grade ethanol, and 

an additional by-product of animal feed. The plant is able to benefit from and support 

the local agricultural community. 

D) The Dynamotive BioOil Plant in West Lorne is Dynamotive BioOil’s first commercial bio-oil 

plant established in 2005. Dynamotive BioOil converts bio-mass residues (forest residues) 

and energy crops (agricultural residues) into liquid bio-oil and char and can be a 

replacement for fossil fuels to generate power and heat, stationary gas-turbines, 

stationary diesel engines, kilns and boilers. Char is a high BTU solid fuel used in kilns, 

boilers and the briquette industry. 

E) The Green Lane Landfill is located north of Highway 401 in Southwold Township and is 

owned and operated by the City of Toronto to provide long-term disposal requirements. 

The facility is a modern state of the art facility that provides for environmentally sound 

solid waste disposal. 

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F) West Elgin Water Treatment employs the innovative use of a constructed wetland to 

treat backwash water, membrane filtration and an ultra-violet advance oxidation process 

to disinfect the water supply. The constructed wetland provides a natural way of filtering 

water and also has the added benefit of providing and maintaining a wetland habitat. 

G) Erie Shores Wind Farm is located partially in the municipalities of Bayham and Malahide 

and is one of Canada’s largest wind farms. The wind farm consists of 65 turbines along 29 

kilometres of shoreline and generates 99 megawatts of power, enough to power 30,000 

households annually. 

c) Globalization Continues to Have an Impact 

Outsourcing and off-shoring to overseas markets will continue to impact the 

manufacturing sector in Canada. And while there is a general trend towards 

larger companies shifting production overseas, there has been sustained local 

employment and production growth in smaller companies. 

d) The Creative Economy is Emerging 

It is suggested in the literature that the key sectors now sustaining the 

Canadian economy are knowledge and creativity. As noted in the Elgin and St. 

Thomas Labour Force Development Strategy, the percentage of local residents 

employed in creative occupations is relatively low compared to the larger 

Region and the Province. However, there has been noticeable growth in the 

creative occupations field suggesting a marked shift in the move from the mass 

goods production to the provision of unique goods and services. The Strategy 

suggests “demographic risk” in the areas of natural and acquired sciences, 

business, finance and administration, management and health as over 50% of 

those employed in those fields are above the age of 45 and will result in a 

shortage of replacement workers in the study area in these fields. 

A recent University of Toronto Report suggests that Ontario needs to invest in 

people, businesses, institutions and infrastructure; focus on the increasing 

demand for services; draw on the resources of new Canadians; focus on 

geographic clusters and concentrations of industries and skills, and connect the 

clusters; and the role of a municipality is to understand the strength of the 

Region and build on it through recognition, mentorships and networking. 

e) Our Work Force is Aging 

The gradual aging of the population will present challenges in Elgin County and 

St. Thomas for the replacement workers. As noted in the County’s Economic 

Development Plan, population is expected to increase in the County in the 

foreseeable future however, the growth rate will be relatively slow and may 

have “long-term implications for the County’s business investment attraction 

and retention efforts and its competitive positive relative to other 

communities”. It is also noted in the Economic Development Plan that, 

although there appears to be a significant proportion of available workforce in 

the 25 to 44 age range, there is also a significant proportion of the population 

6 


in the County between the ages of 45 and 64, and while this trend is similar to 

many communities across Canada, it has impacted the ability to attract and 

retain businesses in the County. In some areas of the Province, levels of 

immigration have helped to fulfill the need for replacement workers. 

However, in the Elgin and St. Thomas areas, levels of immigration are 

relatively low. 

f) Skilled Labour Force Gaps 

According to the Elgin and St. Thomas Labour Force Development Strategy, 

only 46.6% of the Region’s labour force is employed in skilled occupations, 

compared to the rest of the Provincial average which is 55.5%. As noted in the 

Elgin and St. Thomas Labour Force Development Strategy, it is important for a 

community to have a skilled labour force to attract new businesses and 

investment to an area. 

While there is a noted lack of an overall skilled labour force in the area, the 

report notes that it is difficult to determine what specific areas of skilled 

labour are lacking in the area. The Strategy also discusses the importance of 

transferring skills across industries, as this transferability across industrial 

sectors can reinforce the importance of specific regional training programs, 

and this targeting can create a more substantial supply and demand from a 

labour force perspective. When a worker has “transferrable” skills, that 

worker can more easily move from one employer to another, or from a similar 

industry to another. In addition, higher levels of skills transferability in a 

labour force is attractive to industry that would like to locate in the County, or 

to existing industries that are contemplating expansion. 

2.2 Analysis of Elgin County Economic Potential 

In support of the preparation of the County’s Official Plan, the Centre for Spatial 

Economics (C4SE) assessed the economic and demographic potential of the County to 

2036. The purpose of this section is to summarize some of C4SE’s findings. 

2.2.1 Historical Growth Trends in the Area 

A census division (CD) is the general term for provincially legislated areas (such as a 

County) that is an intermediate geographic area between the provincial and municipal 

levels. Statistics Canada’s post-censal estimates of the population provide the most 

up to date population data country-wide at the CD level. The post-censal estimates of 

the population adjust the Census estimates for the estimated undercount of the census 

(usually about 3 to 4 percent of the total population) and provide estimates for the 

years between each census (the Census is undertaken once every five years). Exhibit 1 

compares the population growth of the Elgin CD (Elgin County plus St. Thomas) to that 

of the nearby CDs of Middlesex, Oxford and Chatham-Kent, and to Ontario as a whole. 

The populations of each area are shown in Exhibit 1 in index form with the population 

for each set equal to 100 in 1976. 

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Exhibit 1 

Total Population of Ontario, Middlesex, Elgin, Oxford and Chatham-Kent 

Annual Data in Index Form from 1976 to 2009 with 1976 = 100 

Source: C4SE based on Statistics Canada’s Post-Censal Population Estimates 

Exhibit 1 shows that the population of Ontario grew by 53 percent between 1976 and 

2009. In comparison, the population of the Middlesex grew by 45 percent over the 

same period, a pace close to that of the Province as a whole. The population of Elgin 

grew by 26 percent, less quickly than half that of Ontario. Adjacent Oxford grew 

almost as quickly as Elgin (22 percent). In sharp contrast, Chatham-Kent’s population 

in 2009 was just 1 percent higher than it had been 33 years earlier. 

There are 49 CDs in Ontario. To put Elgin-area growth in context, it is noted that: 

• Elgin’s growth by 26 percent from 1976 to 2009 ranked 24 th out of the 49 

Ontario CDs, while Middlesex’s growth by 45 percent ranked 14 th . 

• The fastest growing CDs in Ontario over that same period were York Region 

(381 percent), Peel Region (237 percent), Durham Region (131 percent), 

Simcoe County (110 percent) and Halton Region (109 percent). In other words 

the fastest growing CDs in Ontario were Toronto’s four sub-urban regional 

municipalities plus Simcoe just north of the GTA. 

• The population of 7 Ontario CDs – all in northern Ontario – declined over that 

period. 

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2.2.2 The Economic Base of Elgin 

Census data reveal that in 2006 a total of 43,200 of the 88,670 residents of Elgin had 

jobs. Spatially they worked as follows: 

· 3,745 worked at home 

· 18,500 worked outside of their homes for an employer in Elgin (including St. 

Thomas) 

· 4,005 had no fixed workplace (sales, construction, delivery, etc.) 

· 8,345 worked in London 

· 8,605 worked in another nearby community 

In other words only 51 percent of Elgin’s employed residents (including those working 

at home) were employed by Elgin-based employers. 

Census data also reveal that in 2006 Elgin-based employers provided jobs to 34,815 

people. Since only 18,500 Elgin residents worked outside their homes for employers 

based in Elgin, the remaining 16,305 jobs in Elgin were held by people residing outside 

of Elgin in nearby communities such as Middlesex and Oxford. Therefore, during each 

work day, there is considerable out-commuting from Elgin (at least 16,950) and incommuting 

to Elgin (16,305). 

It is the jobs offered by employers in Elgin that define the economic base of Elgin. 

Employers based in Elgin account for a significant portion of the wages and salaries 

spent in the area each year by Elgin residents, and employers in Elgin account for all 

of the non-residential property taxes collected within Elgin. The industrial 

composition of Elgin-based jobs therefore reflects Elgin’s industrial dependence. 

2.2.2.1 Economic Base and Community Base Economic Activities in Elgin 

The economic activities occurring in a community can be divided into those that are 

export-based and those that are community-based. Export-based industries – the 

economic drivers or the economic base of a community – produce goods that are 

shipped to markets outside the community (agriculture, forestry, fishing, mining and 

manufacturing), or they provide services to visitors and seasonal residents of the 

community (hotels, restaurants, retail outlets, recreation attractors, specialized 

hospitals, colleges and universities) or to businesses outside the community 

(specialized financial or professional services). Community-based industries produce 

services that meet the needs primarily of the local residents of the community (retail, 

medical, primary and secondary education, and personal and government services). 

In order to determine which industries are the key drivers of Elgin, C4SE first 

developed location quotients on an industry-by-industry basis as reflected in Exhibit 2. 

Exhibit 2 decomposes employment by place-of-work by industry data for 2006 into its 

economic-base (EB) and community-base (CB) components based on Elgin’s activity 

rates (its ratios of employment per 1,000 residents) compared to those for Ontario as a 

whole. 

9 


In this decomposition, all jobs in the agriculture, forestry, mining and manufacturing 

sectors are by definition considered to be economic base or export-based. Exportbased 

jobs in all the other industries are determined where the activity rate in Elgin 

exceeds the rate for Ontario. 

Exhibit 2 

Employment by Place-of-Work in Elgin 

Export Base and Community Base Decomposition in 2006 

Source: C4SE based on Statistics Canada’s Census of Canada 

In Exhibit 2 the first column shows the number of jobs supplied by employers in Elgin 

in 2006 by industry by place-of-work (EPOW). The second column indicates the 

number of jobs for each industry for the Province as a whole. The third and fourth 

columns provide the activity rate by industry for each of Elgin and Ontario. The fifth 

column calculates Elgin’s Location Quotient (LQ) by industry. The Location Quotient 

10 


simply expresses Elgin’s activity rate by industry relative to that for Ontario by 

industry in index form. 

2.2.2.2 Elgin’s Economic Base 

In decomposing jobs into their economic base and community base components, it is 

assumed that all jobs in the agriculture and manufacturing sectors in Elgin are 

producing products for people outside of Elgin and therefore, these jobs are part of 

Elgin’s economic base. With respect to all other industries, it is assumed that for 

industries where the Location Quotient for Elgin exceeds 100 – that is where the 

number per capita exceeds the norm of most other Ontario communities – the extent 

to which jobs in those industries exceed the norm reveals the extent to which those 

excess jobs must be providing services to people who usually live outside of Elgin (to 

tourists and cottagers, for example). 

Exhibit 2 reveals the following: 

• Elgin provided 34,815 jobs on a place-of-work basis and had a population of 

88,658 in 2006. Its activity rate – the ratio of employment by place-of-work to 

the resident population – was therefore 393 jobs per 1,000 residents. In 

comparison, Ontario’s activity rate in 2006 was 440 jobs provided per 1,000 

residents. Thus Elgin’s activity rate was below the provincial average by about 

11 percent. 

• A total of 14,415 of the 34,815 jobs provided by employers in Elgin in 2006 

were economic-base jobs. Thus about 41 percent of all the jobs found in Elgin 

in 2006 were economic driver positions to Elgin. (It is noted that this will 

change once the 2011 Census is completed). 

• Of Elgin’s 14,415 economic base jobs more than 80 percent were accounted for 

by manufacturing and more than 50 percent by transportation equipment 

manufacturing. The remaining 20 percent were accounted for by agriculture. 

• The Location Quotient for agriculture in Elgin was 396 meaning agricultural 

jobs are about 4 times more likely to be found in Elgin per capita than in the 

average Ontario community. 

• The Location Quotient for manufacturing was 201 for Elgin in 2006 meaning 

manufacturing jobs are about 2 times more likely to be found in Elgin per 

capita than in the average Ontario community. The Location Quotients within 

manufacturing – 665 for transportation equipment, 299 for wood products and 

233 for fabricated metals – reveal these three manufacturing industries largely 

define Elgin’s economic base. 

• Outside of the traditional economic base industries of agriculture, mining and 

manufacturing there are no other economic base jobs in Elgin. Not one of the 

service industries in Elgin reaches a Location Quotient of 100 or more. 

The economic base profile revealed for Elgin in Exhibit 2 – all agriculture and 

manufacturing, no business or personal services – is yet another indication of the 

11 


degree of economic integration between Elgin and the City of London. London is so 

well endowed with professional and other business services, and with medical, 

educational, recreational, and other personal services, that such services are offered 

within Elgin at levels well below the norm. 

2.2.2.3 Elgin’s Economic Base by Municipality 

Exhibit 3 reveals where the jobs by place-of-work by major industry were located in 

Elgin in 2006: 

• Outside of St. Thomas, Elgin’s agricultural employment was spread evenly 

throughout the County. 

• In contrast, St. Thomas accounted for 61 percent (7,140) of Elgin’s 

manufacturing jobs (11,620) and Southwold for 22 percent (2,570). Together 

St. Thomas and Central Elgin accounted for more than 80 percent of Elgin’s 

manufacturing jobs. West Elgin accounted for 5 percent, Aylmer for 4 percent 

(490) and Bayham for 4 percent (465). 

• The remaining jobs are all community base positions. St. Thomas (57 percent, 

11,660), Central Elgin (12 percent, 2,430) and Aylmer (12 percent, 2,355) 

collectively accounted for more than 80 percent of the community base jobs in 

Elgin in 2006. 

The highest activity rate in Elgin was found in Southwold (828 jobs per 1,000 residents) 

followed by St. Thomas at 523 and Aylmer at 444. Note that this is the result of the 

location of the Ford plant. All other municipalities in Elgin faced activity rates below 

the 408 average for Elgin as a whole in 2006 (note that the activity rate for Elgin is 

slightly higher in Exhibit 3 than in Exhibit 2 because the population of Elgin in Exhibit 2 

is the post-censal, and therefore a slightly higher, estimate). 

Exhibit 3 

Employment by Place-of-Work in Elgin by Municipality and Major Industry 

Source: C4SE based on Statistics Canada’s Census of Canada 

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2.2.2.4 Implications for Elgin’s Future Economic Base 

Data regarding the actual number of jobs by place-of-work in Elgin since 2006 are not 

available but can be estimated using annual Labour Force Survey data regarding 

employment by industry for the London Census Metropolitan Area since that year. A 

Census Metropolitan Area (CMA) is one or more adjacent municipalities situated 

around a major urban core, whereby the urban core must have a population of at least 

100,000. The number of jobs provided by employers in Elgin in agriculture, 

transportation equipment manufacturing and all other manufacturing as a group fell in 

each of 2007, 2008 and 2009 from a total of 14,415 in 2006 to just 10,925 in 2009 – or 

by 24 percent – and only a modest increase appears to have occurred in 2010 (see 

Exhibit 4). 

Exhibit 4 

Employment by Place-of-Work in Elgin Census Division 

Economic Base Industries 2006 to 2036 

Source: C4SE based on Statistics Canada 

The long term projections for employment in these industries nation-wide and 

Province-wide are not positive. Agriculture and manufacturing production – measured 

in constant dollars – are expected to grow at modest rates in the decades ahead. But 

productivity growth in both agriculture and manufacturing is expected to be high in 

the future (as it has been in the past) meaning that even though production will 

continue to grow the number of jobs will not. 

13 


C4SE projects there will be a modest increase in employment in Elgin in its economic 

base industries from 2011 through 2015 but – in the absence of significant economic 

development gains in yet untapped areas – its economic base employment is unlikely 

to ever return to where it was in 2006 and, following the brief recovery-induced 

upturn, will gradually decline each year beyond 2015 as shown on Exhibit 4. 

The most important implication of the above trends for Elgin County is that its 

industrial property tax base will likely shrink in the future. The tax base will not 

necessarily shrink if production continues to grow at locations within Elgin – even 

though employment will likely decline – but the projections suggest Elgin’s key 

economic base industries are at risk. 

2.3 Tourism 

The County’s economy is also supported by an established and growing tourism 

industry characterized by a wide range of destinations and activities including 

waterfront and beach areas, recreational opportunities such as golf and hiking, Ports 

and historic main street areas, and a range of year-round community festivals and 

events. In addition, the County has recognized and is capitalizing on the emergence 

and growth in a number of other tourism opportunities including agri-tourism, culinary 

tourism, eco-tourism, and geo-tourism (or sustainable tourism). 

2.3.1 Provincial Tourism Trends 

The Ontario Tourism Investment Attraction Research Study (February 2009) was 

prepared by the Ministry of Tourism and Culture in an effort to “better understand 

private sector tourism investment strategies, support Ontario government decisionmaking 

and to sustain competitiveness and growth in the province’s tourism 

industry”. The study revealed a number of trends related to tourism including the: 

• emergence of increasingly sophisticated travelers seeking higher quality, more 

unique experiences and services. 

• increasing numbers of outbound, affluent travelers from emerging countries such 

as China, India, Gulf States, Australia, Korea and South America. 

• increasing numbers of new tourism destinations/competition for both visitors and 

investment dollars. 

• use of events as destination draws – special events, festivals and major business 

events drawing visitors on a short-term basis. 

• focus on arts and culture as a destination draw – performing arts centres, 

museums or art recognized as strong anchors for mixed-use developments. 

• emergence and growth of sustainable tourism, eco-tourism and greening of the 

industry – long-term issues facing the tourism industry such as impacts on seasons 

(e.g. shorter snow seasons) and traveler buying behavior (seeking more 

sustainable travel solutions and destinations). 

2.3.2 Tourism in the “Three Counties” (Elgin, Haldimand & Norfolk) 

The Premier Ranked Tourism Destination Framework (PRTDF) program was initiated by 

the Ministry of Tourism in 2001 with the goal “to help destinations across Ontario 

14 


identify areas for development related to tourism, assess their competitive tourism 

advantage and ultimately improve to become a destination of choice”. The County of 

Elgin is participating in the PRTDF project with the Counties of Norfolk and Haldimand 

to provide a “strategic integrated plan” to guide and promote investment to develop 

and maintain partnerships in the Region. According to the Three County PRTDF Report 

prepared in 2008, there are 16 million people living within a 3-4 hour radius of the 

Three Counties (based on 2006 Statistics Canada & 2000 U.S. Census data) and: 

• in 2004, a total of 1,983,560 guests were attracted to the three counties; 564,495 

or 28% of these guests stayed overnight 

• 84% of overnight visitors resided in Ontario 

• of the 564,495 overnight visitors, 57% were on pleasure trips, 38% were traveling to 

visit friends and relatives, and the remaining 6% were on a business trip or 

traveling for unknown reasons 

• 62% of overnight visitors stayed in private homes or private cottages, 23% in local 

campgrounds or trailer facilities and 7% in roofed commercial lodgings such as 

hotels, motels, resorts, B&Bs and commercial cottages 

The PRTDF Report documents the activities of Canadian and American visitors in 2004 

and 2005 and it indicates strong interest from Canadian and American visitors in 

outdoor water based activities, exhibits, architecture, historical sites, performing 

arts, festivals, events, shopping and dining. 

2.3.3 Tourism Trends in Elgin County 

The Elgin/St. Thomas Tourism Development Strategy and Marketing Plan was released 

in August 2009 and was prepared by Millier, Dickinson Blais Inc. and Yfactor. The 

document serves as a ‘blue print’ to provide strategic direction for the Elgin/St. 

Thomas tourism industry and identifies marketing activities for a five year period. In 

preparing the Strategy and Marketing Plan and the Three-County PRTDF Report, a 

number of interviews were conducted with stakeholders involved directly in tourismrelated 

businesses or having an interest or expertise in the area of tourism). Some of 

the stakeholder observations respecting tourism trends and reasons for selecting Elgin 

County or the broader Three Counties for tourism investment and/or interest included: 

· Tourism opportunities include the waterfront, recreational activities, agritourism, 

eco-tourism, crafters and artisans and heritage and cultural attractions 

that are unique to the area. 

· Gaps or voids identified in the area of tourism capability included signage, lighting 

at major gateway locations, downtown revitalization initiatives, and the need for 

more accommodations and dining opportunities. It was also suggested that a 

larger regional community centre would improve the County’s opportunities to 

attract sporting events and larger events (e.g. concerts) that would attract a 

greater number of visitors. 

· The area’s greatest strength is being situated along Lake Erie. Another focus area 

are the historic landmarks unique to the area including its railway heritage. 

15 


· The attractors have limited appeal to guests from beyond Ontario’s borders. 

· While many of the tourism experiences are available for at least nine months of 

the year, most are not available on a year-round basis 

· Most of the tourism experiences, individually, do not generate visitation for 

periods greater than 24 hours 

· The Three-county region offers a selection of dining experiences, and there is 

growing recognition of local food sources and culinary tourism; however, few 

dining experiences have name recognition outside the area 

· The Three-county region presents a variety of retail shopping experiences, some 

are independently owned and offer a unique selection of merchandise; however, 

most shopping experiences do not have name recognition beyond the region, apart 

from Port Dover 

· Transportation to the Three-county region, other than with personal vehicle, is 

very limited; once visitors get to the destination there is limited travel options 

unless they have a personal vehicle 

2.3.4 Cultural and Heritage Tourism 

Cultural and heritage tourism can involve a wide range of venues, events and activities 

including historic buildings and sites, museums, art galleries, heritage and main street 

fairs and festivals, heritage buildings converted to other uses (e.g. a farm dwelling 

converted to a bed and breakfast), and walking and bus tours. According to the 

County’s Economic Development Plan, “cultural and heritage tourism is one of the 

fastest growing segments of the tourism industry in Canada”. 

Heritage tourism can benefit local communities and economies by: 

· encouraging investment and creating employment 

· promoting the recognition, appreciation and preservation of local history and 

culture, and the identity of a community 

· increasing tax revenues 

· diversifying local economies by creating new local sectors and skills, and 

attracting a wider range of visitors 

It also makes a lot of sense to focus some heritage tourism activities and events in 

downtowns and main street areas as existing indoor and outdoor venues are often 

already available, they provide support for local businesses (many of which are 

independently owned by locals) and it supports the preservation of local heritage 

buildings. 

16 


2.3.5 Agri-tourism 

According to the County of Elgin Agriculture and Agri-business Sector Profile, agritourism 

is defined as travel, which connects agricultural and rural settings with 

agricultural operations. Agri-tourism generally refers to agriculturally-based businesses 

or activities that bring visitors, mainly ‘day-trippers’, to a farm and can be as simple 

as selling produce from a farm stand, or more elaborate activities including corn 

mazes, special events (weddings, corporate functions, theatre productions, themed 

shows), bed & breakfasts, pick-your own farms, feeding animals, cattle drives, 

haunted hayrides, wineries, bakeries and educational tours. 

According to the Sector Profile, “the rationale behind agri-tourism is twofold; firstly 

many farmers have been forced to supplement their income through the broadening 

of their agricultural practices and the adoption of non-agricultural activity to 

compensate for cost/price pressures and agricultural overproduction. Secondly, there 

has been an increase in demand by the general public for specialized vacation 

experiences, which has stimulated growth for tourism and recreational activity in 

rural settings”. The following figure from the Sector Profile summarizes the benefits 

and costs associated with the introduction of agri-tourism in a community. 

According to a December 2010 article in Better Farming, approximately 2,000 farms in 

Ontario practice some form of agri-tourism, according to Mark Saunders of the Ontario 

Farm Fresh Marketing Association. The benefits of agri-tourism to local economies 

include support for other local businesses that provided needed supplies and ancillary 

services, additional income for farmers, and opportunities 

to educate ‘urbanites’ about the importance and challenges 

associated with agriculture. 

However, as noted in the Better Farming article, as agritourism 

businesses expand and flourish, it is difficult for 

some farmers to continue to maintain the agricultural use 

as the primary use. In addition, many agri-tourism uses 

grow slowly. A good example is the small road-side stand 

17 


selling produce that gradually grows into a large retail store that may present land use 

planning issues as a result of increased traffic, land use compatibility, and the growth 

and establishment of urban-type uses that should be located in urban areas. 

Elgin County has already experienced some success in the area of agri-tourism. For 

example, Heritage Line Herbs is a small family farm that now grows organically-grown 

potted herbs and dried herbal blends, after transitioning from tobacco farming. 

Heritage Line Farms prides itself in producing sustainably-grown herbs and entertains 

thousands of visitors to their farm store and seasonal tea room each year. 

2.3.6 Culinary Tourism 

According to the Ministry of Tourism and Culture’s Culinary Tourism in Ontario 

Strategy and Action Plan (2005-15), culinary tourism “includes any tourism experience 

in which one learns about, appreciates, and/or consumes food and drink that reflects 

the local, regional, or national cuisine, heritage, culture, tradition, or culinary 

techniques”. According to the Ministry’s Strategy and Action Plan, one of the key 

driving forces associated with culinary tourism is the “importance of local”. The Plan 

notes that “culinary tourism is clearly tied to a sense of place” in that it can help 

define an area or region, support and complement other types of tourism, and support 

local farmers and economies. 

According to the Strategy and Action Plan, the supply chain for culinary tourism 

consists of: 

· farmers, growers, producers, suppliers, owners, operators 

· processors, distributors, transporters 

· wineries, breweries, restaurants, hotels, inns, outfitters, cideries, spas 

· events, attractions, 

entertainment, markets, 

cooking 

· schools, culinary 

colleges, tour operators 

· media, educators, DMOs, 

marketers 

· tourists 

· government, banks 

· countries, provinces, 

communities, cities, and 

towns 

Given the extensive supply 

chain, culinary tourism can 

provide significant economic benefits to communities. 

18 


2.3.7 Ecotourism and Geotourism (Sustainable Tourism) 

Ecotourism is often referred to as “responsible” travel to locations and regions 

protected for ecological or cultural heritage reasons. Ecotourism activities are 

designed to educate tourists, fund conservation and community development efforts, 

and to be small-scale to minimize impacts on protected areas. 

Geotourism is often referred to as sustainable tourism that strives for the reinvestment 

of tourist dollars into the maintenance and enhancement of the character, 

features and resources of the tourism destination or site, and more importantly, the 

community and people where the destination or site is located. 

19 


3.0 PROVINCIAL POLICY & COUNTY INITIATIVES 

A review of the literature in Section 2 of this Paper pertaining to the local economy 

and tourism clearly demonstrates a need to address a number of issues. However, 

there are a number of opportunities for the County to consider with respect to 

economic development and tourism. It is recognized that through the Official Plan, 

the County can provide a leadership role, and encourage and facilitate the 

implementation of measures to address many of these issues. Through the Planning 

Act and more importantly the Provincial Policy Statement, the Province has provided 

policy direction with respect to the provision of employment opportunities, and the 

protection of the financial and economic well being of the Province and its 

municipalities. In addition, the County has prepared an Economic Development Plan 

and a number of other studies and initiatives to address economic issues and 

opportunities in Elgin. Consultation with the public, partner municipalities, 

stakeholders and agencies is providing valuable information respecting County 

economic issues and potential opportunities and strategies. 

On the basis of the above, it is the intent of this section to provide a summary of the 

policy requirements, goals, objectives and recommendations that could be considered 

in preparing the County’s first Official Plan. 

3.1 Provincial Legislation and Policy 

3.1.1 Planning Act 

The purposes of the Planning Act, as set out in Section 1.1 of the Act, is to: 

a) promote sustainable economic development in a healthy, natural 

environment; 

b) provide for a land use planning system lead by Provincial policy; 

c) integrate matters of Provincial interest in Provincial and municipal 

planning decisions; 

d) provide for planning processes that are fair by making them open, 

accessible, timely and efficient; 

e) encourage cooperation and coordination among various interests; and, 

f) recognize the decision making authority and accountability of municipal 

Council’s in planning. 

The Planning Act requires that the Council of a municipality shall have regard to 

matters of Provincial interest, including the: 

• protection of the agricultural resources of the Province; 

• conservation and management of natural resources and the mineral 

resource base; 

• conservation of features of significant architectural, cultural, historical, 

archaeological or scientific interest; 

• supply, efficient use and conservation of energy and water; 

• adequate provision and efficient use of communication, transportation, 

sewage and water services and waste management systems; 

20 


• orderly development of safe and healthy communities; 

• adequate provision of employment opportunities; 

• protection of financial and economic well being of the Province and its 

municipalities; 

• coordination of planning activities of public bodies; and, 

• appropriate location of growth and development. 

On October 19, 2006, Bill 51, the Planning and Conservation Land Statute Law 

Amendment Act received Royal Assent from the Lieutenant Governor of Ontario. Bill 

51 is a continuation of, and complementary to earlier planning framework reforms 

that include the 2005 Provincial Policy Statement (PPS), Places to Grow Act and 

Growth Plan for the Greater Golden Horseshoe, and Greenbelt Act. Most of the 

amendments to the Planning Act by Bill 51 came into effect on January 1, 2007 and 

provide additional implementation tools to municipalities, modify components of the 

planning process, and provide additional support for sustainable development and 

brownfield development. 

In particular, Bill 51 strengthens the ability of municipalities to protect strategic 

employment lands by removing Ontario Municipal Board (OMB) appeal rights of an 

applicant applying to redesignate or rezone employment lands, provided the municipal 

official plan contains such policies. This did not remove the OMB appeal rights at the 

time of a municipality’s required five-year review of an official plan or when a 

municipality is proposing changes to employment policies in the official plan. In 

addition, the Act does not prevent a municipality from converting employment lands 

as part of a comprehensive review as set out in the Provincial Policy Statement, 

discussed in the next section. 

3.1.2 Provincial Policy Statement 

The Provincial Policy Statement, 2005 (PPS) issued under the authority of Section 3 of 

the Planning Act, provides policy direction on matters of provincial interest related to 

land use planning and development. The PPS requires Official Plans to “be consistent 

with” the policy statement, a higher order of compliance than the previous PPS 

language required. 

Part IV of the PPS sets out a vision for the Province’s Land Use Planning System stating 

that “the long-term prosperity and social well-being of Ontarians depend on 

maintaining strong communities, a clean and healthy environment and a strong 

economy”. In addition, the Part IV states that “strong communities, a clean and 

healthy environment and a strong economy are inextricably linked. Long-term 

prosperity, environmental health and social well-being should take precedence over 

short-term considerations”. It is clear that the Province considers a strong economy, 

along with strong communities and a healthy environment, as integral to our future. 

The PPS also states that “the wise management of development may involve 

directing, promoting or sustaining growth. Land use must be carefully managed to 

accommodate appropriate development to meet the full range of current and future 

needs, while achieving efficient development patterns”. 

21 


“Efficient development patterns optimize the use of land, resources and public 

investment in infrastructure and public service facilities. These land use patterns 

promote a mix of housing, employment, parks and open spaces, and transportation 

choices that facilitate pedestrian mobility and other modes of travel. They also 

support the financial well-being of the Province and municipalities over the long 

term, and minimize the undesirable effects of development, including impacts on air, 

water and other resources. Strong, liveable and healthy communities enhance social 

well-being and are economically and environmentally sound”. This section of the PPS 

speaks to the importance of efficient development patterns which can support the 

financial well-being of the Province and municipalities, and can lead to strong, 

liveable, healthy and economically sound communities. 

The following chart provides a summary of relevant economic development and 

tourism policies from Part V of the PPS to be considered in preparing the County 

Official Plan. 

1.0 Building Strong Communities 

Ontario's long-term prosperity, environmental health and social well-being depend on wisely 

managing change and promoting efficient land use and development patterns. Efficient land 

use and development patterns support strong, livable and healthy communities, protect the 

environment and public health and safety, and facilitate economic growth. 

1.1 Managing and Directing Land Use to Achieve Efficient Development and Land Use Patterns 

1.1.1 Healthy, liveable and safe communities are sustained by: 

a) promoting efficient development and land use patterns which sustain the financial 

well-being of the Province and municipalities over the long term; 

b) accommodating an appropriate range and mix of residential, employment (including 

industrial, commercial and institutional uses), recreational and open space uses to 

meet long-term needs; 

c) avoiding development and land use patterns which may cause environmental or public 

health and safety concerns; 

d) avoiding development and land use patterns that would prevent the efficient 

expansion of settlement areas in those areas which are adjacent or close to 

settlement areas; 

e) promoting cost-effective development standards to minimize land consumption and 

servicing costs; 

f) improving accessibility for persons with disabilities and the elderly by removing and/or 

preventing land use barriers which restrict their full participation in society; and 

g) ensuring that necessary infrastructure and public service facilities are or will be 

available to meet current and projected needs. 

1.1.2 Sufficient land shall be made available through intensification and redevelopment and if 

necessary, designated growth areas, to accommodate an appropriate range and mix of 

employment opportunities, housing and other land uses to meet projected needs for a time 

horizon of up to 20 years. However, where an alternate time period has been established for 

specific areas of the Province as a result of a provincial planning exercise or a provincial plan, 

that time frame may be used for municipalities within the area. 

1.1.3.1 Settlement areas shall be the focus of growth and their vitality and regeneration shall be 

promoted. 

1.2 Coordination 

1.2.1 A coordinated, integrated and comprehensive approach should be used when dealing with 

planning matters within municipalities, or which cross lower, single and/or upper-tier 

municipal boundaries, including: 

a) managing and/or promoting growth and development; 

b) managing natural heritage, water, agricultural, mineral, and cultural heritage and 

archaeological resources; 

c) infrastructure, public service facilities and waste management systems; 

d) ecosystem, shoreline and watershed related issues; 

22 


e) natural and human-made hazards; and 

f) population, housing and employment projections, based on regional market areas. 

1.2.2 Where planning is conducted by an upper-tier municipality, the upper-tier municipality in 

consultation with lower-tier municipalities shall: 

a) identify, coordinate and allocate population, housing and employment projections for lowertier 

municipalities. Allocations and projections by upper-tier municipalities shall be based on 

and reflect provincial plans where these exist; 

b) identify areas where growth will be directed, including the identification of nodes and the 

corridors linking these nodes; 

c) identify targets for intensification and redevelopment within all or any 

of the lower-tier municipalities, including minimum targets that should be met before 

expansion of the boundaries of settlement areas is permitted in accordance with policy 1.1.3.9; 

d) where transit corridors exist or are to be developed, identify density targets for areas 

adjacent or in proximity to these corridors, including minimum targets that should be met 

before expansion of the boundaries of settlement areas is permitted in accordance with policy 

1.1.3.9; and 

e) identify and provide policy direction for the lower-tier municipalities on matters that cross 

municipal boundaries. 

1.3 Employment Areas 

1.3.1 Planning authorities shall promote economic development and complete by: 

a) providing for an appropriate mix and range of employment (including industrial, 

commercial and institutional uses) to meet long-term needs; 

b) providing opportunities for a diversified economic base, including maintaining a range 

and choice of suitable sites for employment uses which support a wide range of 

economic activities and ancillary uses, and take into account the needs of existing and 

future businesses; 

c) planning for, protecting and preserving employment areas for current and future uses; 

and 

d) ensuring the necessary infrastructure is provided to support current and projected 

needs. 

1.3.2 Planning authorities may permit conversion of lands within employment areas to nonemployment 

uses through a comprehensive review, only where it has been demonstrated that 

the land is not required for employment purposes over the long term and that there is a need 

for the conversion. 

1.6.5 Transportation Systems 

1.6.5.1 Transportation systems should be provided which are safe, energy efficient, facilitate the 

movement of people and goods, and are appropriate to address projected needs. 

1.6.7 Airports 

1.6.7.1 Planning for land uses in the vicinity of airports shall be undertaken so that: (a) the long-term 

operation and economic role of airports is protected; and (b) airports and sensitive land uses 

are appropriately designed, buffered and/or separated from each other to prevent adverse 

effects from odour, noise and other contaminants. 

1.7 Long-Term Economic Prosperity 

1.7.1 Long term economic prosperity should be supported by: 

a) optimizing the long-term availability and use of land, resources, infrastructure and 

public service facilities; 

b) maintaining and, where possible, enhancing the vitality and viability of downtowns 

and main streets; 

c) promoting the redevelopment of brownfield sites; 

d) providing for an efficient, cost-effective, reliable multi-modal transportation system 

that is integrated with adjacent systems and those of other jurisdictions, and is 

appropriate to address projected needs; 

e) planning so that major facilities (such as airports, transportation/transit/rail 

infrastructure and corridors, intermodal facilities, sewage treatment facilities, waste 

management systems, oil and gas pipelines, industries and resource extraction 

activities) and sensitive land uses are appropriately designed, buffered and/or 

separated from each other to prevent adverse effects from odour, noise and other 

contaminants, and minimize risk to public health and safety; 

f) providing opportunities for sustainable tourism development; 

23 


1.7.1 Long term economic prosperity should be supported by: 

a) optimizing the long-term availability and use of land, resources, infrastructure and 

public service facilities; 

b) maintaining and, where possible, enhancing the vitality and viability of downtowns 

and main streets; 

c) promoting the redevelopment of brownfield sites; 

d) providing for an efficient, cost-effective, reliable multi-modal transportation system 

that is integrated with adjacent systems and those of other jurisdictions, and is 

appropriate to address projected needs; 

e) planning so that major facilities (such as airports, transportation/transit/rail 

infrastructure and corridors, intermodal facilities, sewage treatment facilities, waste 

management systems, oil and gas pipelines, industries and resource extraction 

activities) and sensitive land uses are appropriately designed, buffered and/or 

separated from each other to prevent adverse effects from odour, noise and other 

contaminants, and minimize risk to public health and safety; 

f) providing opportunities for sustainable tourism development; 

g) promoting the sustainability of the agri-food sector by promoting agricultural 

resources and minimizing land use conflicts; and 

h) providing opportunities for increased energy generation, supply and conservation, 

including alternative energy systems and renewable energy systems. 

DEFINITIONS 

Airports: means all Ontario airports, including designated lands for future airports, with Noise Exposure 

Forecast (NEF)/Noise Exposure Projection (NEP) mapping. 

Brownfield sites: means undeveloped or previously developed properties that may be contaminated. They 

are usually, but not exclusively, former industrial or commercial properties that may be underutilized, 

derelict or vacant. 

Comprehensive review: means 

a) for the purposes of policies 1.1.3.9 and 1.3.2, an official plan review which is initiated by a planning 

authority, or an official plan amendment which is initiated or adopted by a planning authority, which: 

1. is based on a review of population and growth projections and which reflect projections and allocations 

by upper-tier municipalities and provincial plans, where applicable; considers alternative directions for 

growth; and determines how best to accommodate this growth while protecting provincial interests; 

2. utilizes opportunities to accommodate projected growth through intensification and redevelopment; 

3. confirms that the lands to be developed do not comprise specialty crop areas in accordance with policy 

2.3.2; 

4. is integrated with planning for infrastructure and public service facilities; and 

5. considers cross-jurisdictional issues. 

b) for the purposes of policy 1.1.5, means a review undertaken by a planning authority or comparable 

body which: 

1. addresses long-term population projections, infrastructure requirements and related matters; 

2. confirms that the lands to be developed do not comprise specialty crop areas in accordance with policy 

2.3.2; and 

3. considers cross-jurisdictional issues. 

Section Employment 1.0 area: of the means PPS those states areas that designated economic in an growth, official plan livable for clusters and healthy of business communities, 

and economic 

environmental activities including, protection but not limited and to, public manufacturing, health and warehousing, safety are offices, supported and associated by efficient retail and land 

use ancillary and facilities. development patterns. Section 1.1.1 establishes the intent of the Province 

with Infrastructure: respect means to the physical maintenance structures (facilities of healthy, and corridors) liveable that and form safe the communities, foundation for and is 

development. Infrastructure includes: sewage and water systems, septage treatment systems, waste 

premised on the view that additional growth and development is beneficial to the 

management systems, electric power generation and transmission, communications/telecommunications, 

Province, transit and transportation provided it corridors is appropriately and facilities, oil planned. and gas pipelines This and section associated also facilities. indicates that 

healthy, Redevelopment: liveable means and the creation safe of communities new units, uses or are lots sustained on previously by developed accommodating land in existing an 

appropriate communities, including mix of brownfield employment sites. (including industrial, commercial and institutional 

uses) Transportation to meet systems: long-term means a system needs. consisting This of corridors means and that rights-of a variety way for the of movement employment of 

people and goods, and associated transportation facilities including transit stops and stations, cycle lanes, 

opportunities and employment types should be provided for, much like a range of 

bus lanes, high occupancy vehicle lanes, rail facilities, park’n’ride lots, service centres, rest stops, vehicle 

housing inspection and stations, housing intermodal types terminals, is also required. harbours, and associated facilities such as storage and 

  maintenance. 

Section 1.1.2 of the PPS indicates that sufficient land shall be made available to 

accommodate an appropriate range and mix of employment opportunities, housing and 

24 


other land uses to meet projected needs for a time horizon of up to 20 years. This 

section clearly indicates that land for an appropriate range and mix of employment 

opportunities shall be made available. The use of the word “shall” in the context of 

this policy means that this policy is mandatory. 

  

Section 1.2.1 of the PPS states that a coordinated, integrated and comprehensive 

approach ‘should’ be used when dealing with matters crossing lower, single and/or 

upper-tier municipal boundaries. Matters where 1.2.1 apply include managing and/or 

promoting growth and development. 

  

Section 1.3.1 of the PPS indicates that planning authorities 'shall' promote economic 

development and competiveness by doing certain things, which are set out in subsections 

a) to d). The use of the word 'shall' means that the policy is mandatory and is 

required to be met to the greatest extent possible by every planning authority. 

  

Section 1.3.1 b) of the PPS indicates that economic development and competiveness 

shall be promoted by providing for a range of suitable sites which support a wide range 

of economic activities that support a diversified economic base. In addition, Section 

1.3.1 b) of the PPS clearly indicates that one of the ways to promote economic 

development and competitiveness in Ontario is to take the needs of existing and 

future businesses into account. Section 1.3.1.c) of the PPS also indicates that the 

County shall promote economic development and competiveness by planning for, 

protecting and preserving employment areas for current and future uses.   

  

As per Section 1.3.2 of the PPS, planning authorities have the ability to protect the 

conversion of employment areas but can consider conversions as a part of a 

comprehensive review provided there is a demonstrated need to convert the 

employment lands which are not required in the long-term. 

  

From a transportation perspective, Section 1.6.5.1 of the PPS states that safe and 

energy efficient transportation systems should be provided to facilitate people and 

goods movement based on projected needs. Section 1.6.7.1 clearly requires planning 

for land uses in the vicinity of airports to, in part, protect the economic role of 

airports. 

Section 1.7.1 of the PPS states that long term economic prosperity should be 

supported by actions and approaches including optimizing the long-term availability of 

land, resources, infrastructure and public service facilities; maintaining, and where 

possible, enhancing the vitality and viability of downtowns and main streets; 

promoting the redevelopment of brownfield sites; providing an efficient, costeffective 

and reliable multi-modal transportation system; planning to protect major 

facilities; providing opportunities for sustainable tourism development; and promoting 

the sustainability of the agri-food sector. 

3.1.3 Provincial Rural Plan – 2007 Update 

The Province’s Rural Plan, Strong Rural Communities, was prepared by the Ministry of 

Agriculture, Food and Rural Affairs and is intended to “reflect the aspirations of rural 

Ontarians” and to set out a plan “to build prosperous opportunities for rural 

25 


Ontario”. The Plan identifies a number of goals and strategies for consideration by 

the County. 

GOAL STRATEGIES 

Local economies that are 

diversified, innovative 

and support well-paying, 

high quality jobs 

The capacity to develop 

vibrant local economies 

through strong 

leadership 

Skilled workers able to 

take advantage of 

diverse employment 

opportunities 

Up-to-date and wellmaintained 

infrastructure 

• Support community revitalization 

• Promote economic development in Northern Ontario and Aboriginal 

communities 

• Promote diversification and strengthen innovation capacity 

• Encourage sustainable resource-based industries including economically 

viable agriculture, mining and forestry sectors 

• Promote sustainable resource use and maximize the potential of tourism 

as an economic driver 

• Provide tools and resources to build local community and economic 

development capacity 

• Provide employment opportunities and leadership development to youth 

in rural areas 

• Build the capacity of the voluntary sector 

• Provide support to municipal staff and enhance the fiscal capacity of 

municipalities 

• Invest in skills development 

• Improve water quality and upgrade sewage treatment and waste 

management infrastructure 

• Improve local roads and bridges 

• Improve northern highways 

• Provide municipalities with innovative financing tools to help fund 

infrastructure projects 

• Repair and improve arts, culture, sports and recreation infrastructure 

• Improve access to affordable housing 

3.2 SCOR – The Path Forward – Strategic Management Plan (2009 – 2010) 

SCOR (South Central Ontario Region) is a partnership between the County governments 

of Brant, Elgin, Middlesex, Norfolk, and Oxford. The SCOR partners recognize the 

ongoing need for regional leadership and collaboration, vision and commitment to 

change, commitment to sustained implementation, accountability, funding and the 

ability to harness the power of the entrepreneurial and mind-set. To a great extent 

SCOR was established in response to recent impacts on the Region’s economy including 

the collapse of the tobacco industry, the decline of the local food processing industry, 

increasing cost of energy and labour, global and economic uncertainties and 

decreasing commodity values. The Strategic Management Plan was prepared as a mid 

to long-term strategy for revitalization and diversification of the Regional economy. 

A SCOR vision was created by the partnership and is shown in the figure below: 

26 


A total of 15 priorities for action are identified in the SCOR Strategic Management Plan 

and include: 

1. Maintaining a competitive edge 

· Regional approach to economy development and diversification 

· Ensure partnership remains competitive 

· Support quality of life efforts in both rural and urban communities 

· Review region’s regulatory environment including policies, programs, taxes, 

fees and charges 

2. Supporting entrepreneurship 

· In the short-term, retention of existing manufacturing operations is a key 

priority 

· Expansion and attraction efforts should be focused on those sub-sectors 

that have demonstrated a competitive advantage and appear to be good 

growth prospects (food processing, fabricated metal processes, automotive 

assembly and parts manufacturing and manufacturing related to renewable 

energy and green products. 

27 


4. Investing in Infrastructure 

· Need for investment in public infrastructure to support the revitalization of 

the region’s economy. 

· Sustainability 

· Water – a linked regional system of piped water is 

proposed 

· Provincial highways and County roads – including 

the improvement of north-south roads for the 

movements of goods and people 

· Sewers 

· Rail, airports, harbours, broadband and public utilities 

5. Expanding research, development and commercialization 

· Diversification of the agriculture sector 

· Centre of excellence providing rural and agricultural solutions to climate 

change 

7. Accessing the market place (agri-business and food industry) 

· Increasing the ability of Regional producers to bring their products to the 

marketplace and obtain a greater return for their products. 

· Support development of an Agri-Tourism Showcase 

9. Enhancing the quality of life of our communities (culture and quality of life) 

· Supporting volunteerism and engaging youth 

· Enhancing access to public facilities for community and cultural activities 

10. Fielding a winning team (energy) 

· Demonstrate competitiveness in bio-mass energy from agricultural products 

11. Advancing the rural role in renewable energy 

· Consistent and aggressive advocacy with senior levels of government for 

locally-grown renewable energy solutions 

28 


· “Need to even the playing field” for regional proponents that tend to be 

smaller, cooperative companies with strong ties to our rural and 

agricultural communities 

12. Reducing our carbon footprint 

13. Protecting drinking water 

14. Promote themed touring routes 

· Six regional tourism themes recommended for SCOR: Festivals and fairs, 

outdoor activity and eco-adventure, authentic small towns, agri-tourism, 

food and the culinary arts, world-class natural heritage and cultural 

heritage. 

15. Develop an agri-tourism showcase 

· Establish a premier site along the 400 series highway consisting of a mixeduse 

centre accommodating food, retailing, food service, food science and 

culinary arts education, and a travel information centre. 

The County Official Plan can support some of the priorities for action in the SCOR 

Strategic Management Plan including supporting quality of life efforts, retaining 

existing manufacturing operations, investing in infrastructure (including public 

facilities), diversification of the agriculture sector, reducing our carbon footprint and 

protecting drinking water. 

3.3 County Plans and Studies 

3.3.1 County of Elgin Economic Development Plan (2007-11) 

In 2006, an Economic Development Office was created to respond to regional 

economic trends, take advantage of opportunities and provide a unified approach to 

economic development in the County. The County Economic Development Plan was 

prepared in 2007 by Millier Dickinson Blais to provide the: 

• County and 7 partner municipalities with clear strategic direction and goals 

towards realizing a common regional economic vision 

• County’s Economic Development Office with a detailed implementation 

plan to take advantage of identified local, regional and international 

opportunities that will attract and retain business investment, create 

employment, diversify the economy and broaden the tax base 

The Economic Development Plan identifies the following sectors that are considered to 

have high potential for attracting new business investment: 

29 


a) Agriculture 

The Plan states that the County is well-positioned to capitalize on the growth 

in the agri-business sector which includes intermediate processed food and 

consumer-oriented food products. The Plan notes that the “growing consumer 

demand for more innovative and higher quality products will allow 

competition from smaller farms/firms in Elgin to compete on factors beyond 

price”. 

b) Transportation and Warehousing 

The Plan suggests Elgin’s transportation and warehousing sector will continue 

to grow due to the proximity to Highway 401 and the significant growth in 

manufacturing in the 401 corridor between the Greater Toronto Area and 

Windsor. 

c) Manufacturing 

The Plan suggests continued focus on labour force, skills training and 

development opportunities in the areas of 

transportation and equipment manufacturing, 

food manufacturing, fabricated metal products, 

machinery, and plastics and rubber products “will 

help ensure that Elgin remains a consideration in 

the selection of future business investment”. 

The Plan also encourages continued emphasis on 

industrial diversity and addressing the over-supply 

of basic labour and the emergence of highly 

skilled and technical production workers. 

d) Construction 

The Plan cites data suggesting “employment in the construction sector as 

unsteady due to the instability of the sector”. Opportunities for growth in this 

sector are related primarily to the amount of new residential development that 

will occur in the area. 

e) Tourism 

There are significant tourism opportunities related to the County’s natural 

environment and outdoor recreational opportunities, the Lake Erie shoreline 

and the benefits associated with the railway heritage in the area. The Plan 

also refers to other opportunities associated with eco-tourism, geo-tourism and 

agri-tourism, the Lake Erie coastline, marinas, the arts community, farmers 

markets and winery tours. 

Through a SWOT analysis undertaken in preparing the Economic Development Plan, the 

following strengths, weaknesses, opportunities and threats, that may be relevant to 

the County’s Official Plan, were identified: 

30 


Strengths – quality of life, natural assets (including beaches, 

fishing, Provincial Parks, forests), population & labour force 

growth (due to proximity to London & St. Thomas), strong & 

diverse agricultural foundation, use of emerging 

environmental technologies (e.g. ethanol, wind farms), 

proximity to 400 series highways, educational institutions 

(Fanshawe College’s St. Thomas/Elgin campus, Ontario Police 

College in Aylmer & various regional trade schools), St. 

Thomas Airport in Central Elgin, broad range of arts/culture events and facilities. 

Weaknesses – lack of serviced industrial land, lack of skilled labour and lack of 

County-wide tourism strategy. 

Opportunities – funding from senior levels of government, value added agriculture & 

agri-tourism, and ports of Lake Erie. 

Threats – lack of skilled workforce and loss of manufacturing jobs. 

The Plan sets out four high level goals to achieve a vision for the County as follows: 

1. Investment readiness. 

2. Pursuit of partnerships and outreach in the community. 

3. Effective marketing and promotion of Elgin County. 

4. Growth in key industries. 

Associated with each of these goals are a series of recommended actions as set out in 

the Plan. Recommended actions that could be considered in preparing the County’s 

Official Plan include: 

· Implementation of the Economic Development Plan and strategies. 

· Undertake a feasibility assessment of locating a dry industrial park at 

Highway 401. 

· Investigate feasibility for the County to purchase and develop additional 

serviced industrial land. 

· Assess opportunities for the feasibility of development along the Lake Erie 

waterfront. 

· Examine opportunities for downtown revitalization efforts. 

· Support the development of a farmers market in proximity to Highway 401. 

31 


· Pursue opportunities to attract food processing operations to the County. 

· Explore opportunities to develop a first of its kind in Canada Eco-park on 

the Imperial Tobacco property. 

3.3.1.1 County Official Plan Considerations 

With respect to implementing the Economic Development Plan, the County Official 

Plan can encourage growth in the agri-business sector, support the protection of 

existing industry and encourage the attraction of new industry in strategic locations 

including along Highway 401. The OP can also promote programs that assist in 

attracting skilled labour and retraining of the existing labour pool. 

Recommended actions such as undertaking a feasibility assessment of locating a dry 

industrial park or farmers market along Highway 401, and assessing opportunities for 

development along the Lake Erie waterfront would not be completed as part of the 

preparation of the County’s Official Plan. However, if appropriate, the County Official 

Plan could support the possibility of future development along Lake Erie and Highway 

401 by providing appropriate criteria. The County OP should also support downtown 

revitalization efforts. 

With respect to tourism, the Official Plan can provide policy support for tourism 

‘themes’ such as the railway history and provide land use policies to encourage 

appropriate development in the form of agri-tourism, eco-tourism, etc. Further, the 

County Plan can support the protection of natural features that support or attract 

tourism including the Lake Erie shoreline and wooded areas. 

The Official Plan can also provide policy support for the protection and enhancement 

of Elgin County ‘strengths’ including protecting agricultural areas, promoting the 

continued development of environmental or ‘green’ industry, and encouraging the 

strengthening of relationships with educational institutions (including the 

establishment of new facilities in Elgin). 

3.3.2 County of Elgin Marketing and Branding Strategy (2008-11) 

The County of Elgin Marketing and Branding Strategy, Final Report was completed in 

July 2008 and was prepared, in part, to implement the third goal in the County’s 

Economic Development Plan respecting the need for effective marketing and 

promotion of the County. In developing the Strategy, there was substantial 

consultation with representatives from each of the local municipalities and area 

businesses. Individuals were specifically asked to express their vision for the County, 

and identify strengths and assets, and adjectives to describe the County. 

3.3.2.1 Vision, Key Assets and Goals 

From an Official Plan perspective, the following vision descriptions, key assets and 

primary goals from the Marketing and Branding Strategy are worth consideration: 

Vision 

32 


Key Assets 

Goals 

· Versatility and diversity in all aspects of the economy. 

· Enabling growth while protecting and enhancing rural and small town 

charm. 

· A Green community – building on the heritage of Edison by encouraging the 

use of green technologies. 

· Quality niche retailing in historic communities. 

· High quality of life including health-care infrastructure, good schools, care 

for seniors, wide range of health practitioners. 

· Lake Erie shoreline and the potential of ferry service to the US. 

· Strong and diverse base of agricultural operations. 

· Range of natural landscapes from the lake front/shoreline to the Carolinean 

Forest to the rural rolling landscape. 

· Agri-tourism initiatives, partner with the Mennonite community for tourism 

options. 

· Growing presence of renewable energy operations and bio-fuels. 

· Increase business development. 

· Ensure that schools remain in communities as a key asset to attract young 

families. 

· Encourage the development of a destination or reason to keep tourists for 

more than 4 hours. 

· Enhance our preparedness for industrial development – better planning for 

green industries. 

Some components of the Marketing and Branding Strategy should be considered in 

preparing the County Official Plan including creating versatility and diversity in the 

economy, promoting a high quality of life (infrastructure, schools, social services, 

etc.) and protecting and exploring opportunities along the Lake Erie shoreline. 

3.3.3 County of Elgin Agriculture and Agri-business Sector Profile – July 2009 

  The County of Elgin Agriculture and Agri-business Sector Profile was prepared to 

33 


understand these sectors, consider key trends and strengths in these sectors and assess 

existing infrastructure and assets that support these sectors. The Sector Profile notes 

that agri-business is a generic term that “has traditionally referred to the various 

businesses involved in food production, including farming and contract farming, seed 

supply, agrichemicals, farm machinery, wholesale and distribution, processing, 

marketing, and retail sales”. However, agri-businesses have broadened to include 

uses that go beyond the production and processing food including the use of 

agricultural products for non-food uses and small-scale production and food processing 

including micro-breweries, wineries, and greenhouse production. 

The Sector Profile notes that “as farming practices and technology become more 

advanced and more sophisticated, there is considerable evidence that some of the 

region’s farmers have moved to implement increasingly advanced methods and 

structures for developing and delivering their product to market. Indeed, in some 

cases their product and or market have changed completely, to new areas of agribusiness, 

bio-energy crops and organic farming”. The growth in these sectors presents 

an opportunity to strengthen the agricultural operations by providing new options for 

diversification. 

The Sector Profile cites examples of other jurisdictions that have the agriculture and 

agri-business sectors. For example, Prince Edward County has “built a brand” around 

its local entrepreneurs and creative rural economy. The County prepared a market 

readiness assessment and strategic economic development plan 

“to identify the 

County’s initial economic development successes and to expand the current economic 

development base of the County” and identified five key opportunities for economic 

growth in agriculture through: traditional agriculture, foreign investment in traditional 

or niche farming, organic farming, niche or specialty farming and viticulture. The 

County decided to capitalize on the unique local climate and growing conditions, and 

aggressively pursued agri-food producers. Prince Edward County now has a reputation 

for “producing high quality agri-food products from farm gate products, to wineries, 

and cheese manufacturing”. In Prince Edward County, agriculture is regarded as a 

combination of “traditional agriculture practices and its integration of the latest 

technology and trends to bring family operations into the future…with innovative 

product developers and niche merchandisers that think creatively when cultivating 

food”. 

3.3.4 Elgin and St. Thomas Labour Force Development Strategy 

The Elgin and St. Thomas Labour Force Development Strategy, dated February 26, 

2010, was prepared by Millier Dickinson Blais and was funded by Employment Ontario. 

As noted in Section 2.1 of this Paper, there are a number of trends impacting the local 

economy including changes in the manufacturing sector, growth in the ‘green’ 

economy, emergence of the creative economy, and labour force issues (aging and 

skills gaps). 

The overall strategy for the work force strategy is to: 

34 


1. Collectively create a policy framework and a community infrastructure 

that supports improvements in both quality and quantity of the labour 

supply pool. 

2. Ensure that Elgin - St. Thomas has the work force it needs to achieve its 

economic development goals. 

The report provides a series of recommendations identified as priorities. 

Priority 1: To ensure the availability of skilled work force by creating opportunities 

for retaining our youth, attracting skilled workers and increase the participation of 

under-represented groups such as immigrants and women. 

Recommended actions to achieve Priority 1 include a series of youth retention 

initiatives, programs and initiatives to target the attraction of a younger work force, 

families and new Canadians, removing barriers to employment opportunities. 

Priority 2: To increase the level of educational attainment in the Elgin St. Thomas 

labour force by fostering a culture of life-long learning. 

Recommended actions include increasing the skills capacity within the local labour 

force and increasing educational attainment levels in the Region through a series of 

specific programs and initiatives. 

Priority 3: Provide greater business support to entrepreneurs and small business 

operations. 

Recommended actions include expanding the entrepreneurial and small business 

support already provided through a series of programs and initiatives. 

Priority 4: To maximize labour market opportunities by creating a collaborative 

environment between businesses, government and education. 

Recommended actions include transitioning of displaced workers to employment in 

high growth industries and increasing the understanding of labour force needs for 

skilled workers through a series of initiatives. 


The priority recommendations in the Labour Force Development Strategy build on 

some of the recommendations from other County plans and strategies by providing 

more detailed implementation of labour force strategies. Although the County’s 

Official Plan cannot directly ensure the implementation of these strategies, the 

County’s Official Plan can contain policies that may encourage programs and 

initiatives to: 

• create opportunities for retaining youth, attract skilled workers and increase the 

participation of under-represented groups such as immigrants and women by 

removing barriers to employment opportunities 

35 


• increase the level of educational attainment by fostering a culture of life-long 

learning through a series of specific programs and initiatives 

• provide greater business support to entrepreneurs and small business operations 

through programs and initiatives 

• maximize labour market opportunities by creating a collaborative environment 

between businesses, government and education to provide for a transitioning of 

displaced workers to employment in high growth industries and increasing the 

understanding of labour force needs for skilled workers through a series of 

initiatives 

3.3.5 Elgin/St. Thomas Tourism Development Strategy And Marketing Plan – Final 

Report 

The Elgin/St. Thomas Tourism Development Strategy and Marketing Plan was released 

in August 2009 and was prepared by Millier, Dickinson Blais Inc. and Yfactor and serves 

as a blue print to provide strategic direction for the Elgin/St. Thomas tourism industry 

and identifies marketing activities over a five year period. The report provides an 

overview of key trends in tourism in Ontario, data describing average tourists to the 

area, the types of activities typical tourists participate in, and the impact of tourism 

in the area. In preparing the report the author interviewed 11 key stakeholders who 

are either involved directly as 

businesses in the tourism 

industry or have an interest or 

expertise in the area of 

tourism development. 

In preparing this report, a 

focus group session resulted in 

a series of recommendations 

which are summarized in the 

chart shown. 

3.3.5.1 Strategies & Actions 

The report provides a series of strategies and actions to achieve a vision for tourism in 

the area including: 

· Undertake a cultural asset mapping process that identifies the range of 

assets within the County and St. Thomas. 

· In conjunction with the lower tier municipalities, identify opportunities to 

undertake the creations of Historic Conservation Districts (e.g. Village of 

Sparta, Town of Aylmer) as a way to ensure that their historic charm and 

iconic character is maintained and enhanced. 

36 


· Identify opportunities to partner with the lower tier municipalities and 

private landowners and the development of water based recreational 

opportunities and activities. These could include supporting the 

development of local waterfront recreational plans that identify 

opportunities to enhance the area of tourism potential: facilitate the 

creation of Port area development plans (e.g. Port Stanley, Burwell, Bruce 

and Glasgow) that includes possible residential development opportunities, 

commercial activities etc.; and work with appropriate municipalities to 

conduct a harbour infrastructure assessment to determine sufficient 

capacity for future development and to address urgent issues which require 

mitigation. 

· Work with other waterfront developments and business operators to cross 

promote agri-tourism initiatives and heritage/cultural offerings. 

· Identify 3 or 4 tourism destinations/products (e.g. Port Glasgow, Iron-horse 

Festival, Sparta Village, Port Stanley waterfront) that can be developed 

into iconic attractions to lure visitors to the region. Work with local 

planning departments to identify potential development areas and the 

steps necessary to secure appropriate zoning and infrastructure 

requirements. 

The tourism marketing plan component of the report focuses on the goal and 

implementation of a marketing plan for tourism. The report identifies three Primary 

Lure Attractions being the Elgin County Savour Elgin, Ports of Elgin County and Railway 

Capital of Canada. 

3.3.5.2 Elgin County Savour Elgin Trail 

The Elgin County Savour Elgin Trail has the potential to become one of Elgin County’s 

primary Lure Attractions. The program is to 

encompass the following seven agri-tourism 

cornerstones: 

1. Farm experiences – farm visits, fruit picking, access to animals, corn mazes, 

wagon rides, etc. 

2. Winery Tours – romantic week-ends, luxury amenities. 

3. Farmers markets – increases distribution of local produce. 

4. Eat fresh, buy local – encourage continued and ongoing growth of this program, 

link to the culinary trail program. 

5. Culinary experiences – Cafes, tea rooms, beach-side fish and chips, family 

restaurants and restaurants renowned for culinary excellence. Build on an 

promote over 100 existing food and beverage operators, prepare a guide. 

37 


6. Festivals – agricultural and harvest festivals such as the “Rosy Rhubarb 

Festival” should be actively promoted. 

7. Culinary events/trade shows – London wine and food show can provide an 

excellent venue for promoting Elgin County to a very targeted audience. 

The primary target audience for the culinary trail program will be local residents with 

a secondary target audience being the Hamilton/Toronto areas for people looking for a 

“City escape” 

3.3.5.3 Ports of Elgin County 

Elgin County has more municipalities that have “Ports” than any other County or 

Region in Canada. The report suggests that the ports theme can be used to increase 

shopping, use of accommodations, waterfront 

recreation, restaurant and night club visits and 

surrounding area site-seeing. The Ports of Elgin 

County program would encompass the following 

products: 

1. Shopping – unique shops, quaint shopping areas, hand-made arts and crafts, 

antiques and unusual specialty stores. 

2. Accommodations – campgrounds, inns, etc. 

3. Waterfront and recreational activities – beaches, boating, canoeing, sport 

fishing and other water-based and water-front activities. Land-based 

waterfront activities to include camping, hiking, biking, birding, golf, nature 

trails and parks. 

4. Restaurants and night clubs 

5. Arts and heritage and other attractions – attractions such 

as the Military Museum, art centre, dude ranch, Port 

Burwell interpretive centre, marine museum and 

lighthouses. 

6. Festivals and events 

The report indicates that the primary target audience for this program would be 

affluent families and couples from the London, Hamilton, Burlington, Oakville, 

Brampton and Mississauga areas, with a secondary audience of local residents. 

A good example of pursuing a unique port-related tourist draw is Project Ojibwa in 

Port Burwell. In celebration of the 100 th anniversary of the Royal Canadian Navy, the 

Elgin Military Museum is pursuing acquisition of the HMCS Ojibwa, a cold war Oberon 

Class submarine. The Municipality of Bayham sees Project Ojibwa as an opportunity to 

attract visitors and investment in accommodation, marina development, long-term 

permanent and summer employment, etc. 

38 


3.3.5.4 Railway Capital of Canada 

The Railway Capital of Canada program will involve the marketing of the following 

activities: 

1. Railway attractions promotion – all railway attractions including Canada 

Southern Railway station, Northern 

American Hall of Fame, Jumbo, Elgin 

County Railway Museum and Port 

Stanley Terminal rail. 

2. Iron-horse festival promotion – largest festival in the area. 

3. Accommodations, restaurants and other attractions promotion. 

4. Outreach through attendance at train-related trade shows and events. 

The program is intended to be targeted at all ages and rail-way enthusiasts. 


The Official Plan can help in the promotion and implementation of a number of the 

tourism-related recommendations included in the previously discussed reports by 

considering policies to: 

· Permit and encourage agri-tourism subject to appropriate land use policies 

· Encourage the development of a heritage and culture trail 

· Promote walking tours 

· Support the establishment of Heritage Conservation Districts 

· Encourage the preparation of local harbour improvement, port development and 

waterfront recreational plans 

The County can also consider policies in the Official Plan to support appropriate 

growth and location of the Primary Lure Attractions. 

3.4 Public Consultation 

The preparation of an Official Plan is a significant undertaking that provides a number 

of opportunities for shaping the County’s future, including protecting and supporting 

agricultural communities in a changing economy, and enhancing natural and cultural 

heritage resources. A significant part of this review involves identifying a vision, 

establishing goals and objectives and considering growth and policy options with the 

help of the public and agencies through an extensive consultation process. The 

consultation program features a variety of communication methods and activities to 

ensure that the public, stakeholders, local municipalities and the County as a whole 

have the opportunity to take an active part in shaping the direction and content of the 

Official Plan, and by extension, the future of the County. 

39 


3.4.1 County Tour 

In September 2010, County Staff and the consultant team toured the County and met 

with representatives from various local municipalities. With respect to the local 

economy and tourism, the following comments and issues were received/identified: 

• Servicing constraints impede new development and investment 

• The County Official Plan should not create additional ‘hurdles’ to economic 

development and investment 

• County should provide ‘high-level’ policies with respect to economic 

development, growth strategies and industrial development 

• Concern in some municipalities that there is a lack of local employment 

opportunities 

• Need for additional, serviced employment lands 

3.4.2 Technical & Steering Committee Meetings 

The Technical Committee is comprised of representatives from the County, Provincial 

Ministries (Municipal Affairs & Housing; Environment; Agriculture, Food & Rural Affairs; 

Natural Resources), Kettle Creek Conservation Authority, Catfish Creek Conservation 

Authority, Municipality of Bayham, Town of Aylmer, Municipality of Southwold, 

Municipality of Dutton-Dunwich, Municipality of Central Elgin and City of Thomas. 

As a result of the October 25, 2010 municipal elections, the Steering Committee is now 

comprised of Mayor Bernie Wiehle (West Elgin), Mayor David Mennill (Malahide) and 

Deputy Mayor David Marr (Central Elgin). 

Some of this issues and comments provided at Committee meetings included the 

suggestion that local municipalities are best suited at understanding local economic 

issues. Also, given the emergence and importance of the agri-business and agritourism 

sectors, it was determined that these sectors should be considered as part of 

the County’s Official Plan project. 

3.4.3 Public Focus Group 

The Focus Group consists of members of the general public and stakeholder 

representatives from each of the local municipalities, but is not a decision-making 

body. The main purpose and role of the Focus Group is to provide input to the County 

and consulting team and to act as a ‘sounding board’ throughout the process. 

Comments and issues identified by the Focus Group, with respect to economic 

development and tourism, included the following: 

• Need for flexible policies to deal with economic issues and needs in 

different communities, and in urban and rural areas 

• Need for economic development in the ‘rural’ municipalities 

• Continue to explore and support creative businesses concepts that combine 

agriculture and employment (e.g. new Ethanol plant) 

• Need to explore opportunities for theatre, culture and tourism 

40 


• In considering tourism, ensure County roads can accommodate tourist 

traffic 

• Need for industrial diversification with Ford Plant closing 

• Agriculture, tourism and residential should live in harmony 

• Coordinated effort to promote tourism across the County needed 

• County should allow for economic development along the Highway 401 

corridor 

• Need for a streamlining of planning approvals processes 

3.5 Summary 

We have reviewed the policy requirements, goals, objectives and recommendations in: 

the Provincial Policy Statement; County documents including the County Economic 

Development Plan, the Elgin and St. Thomas Labour Force Development Strategy, and 

the Elgin/St. Thomas Tourism Development Strategy and Marketing Plan; and 

comments from partner municipalities, the Technical and Steering Committees, the 

Public Focus Group, and agencies. Based on this review, the following is a summary of 

policy theme areas that should be considered in preparing the County’s Official Plan. 

1. Create healthy and complete communities that provide a high quality of life and 

economic opportunities for residents and businesses 

2. Support strong and sustainable economic growth, and a diversified economic base 

through: efficient land use and development patterns: an appropriate range and 

mix of economic activities and employment opportunities; and protection and 

preservation of employment areas 

3. Promote the continued development of the environmental or ‘green’ industry 

4. Maintain, and where possible, enhance the vitality and viability of downtowns and 

main streets 

5. Promote the development of brownfield sites 

6. Promote opportunities for tourism development that are sustainable 

7. Protect agricultural areas and diversify the agriculture sector 

8. Invest in infrastructure 

41 


4.0 DISCUSSION 

The purpose of this section is to identify possible Official Plan implementation 

approaches with respect to the policy themes discussed in Section 3.5 of this Paper. 

In discussing possible approaches, we will reference economic and tourism policies in 

the Official Plans (OPs) of Counties adjacent to Elgin County (Norfolk, Middlesex & 

Chatham-Kent) and other selected Counties and regions (Peterborough County, Prince 

Edward County, Halton Region & York Region). Common to all of the OPs reviewed is 

a policy structure that is based on the strategic or high-level objectives of: providing 

complete, healthy and safe communities; sustaining and enhancing the natural 

environment; and developing a thriving economy. A full summary of relevant policies 

are provided in Appendix 2 of this Paper. 

1. Create healthy and complete communities that provide a high quality of life and 

economic opportunities for residents and businesses 

In setting out high level goals and objectives for the County, the OP should identify 

the link between community building and economic prosperity. Part IV of the 

Provincial Policy Statement (PPS) states that “strong communities, a clean and 

healthy environment and a strong economy are inextricably linked”. As an example, 

the County of Middlesex Official Plan supports “the retention of educational, health, 

cultural and religious facilities to ensure that the County’s communities are provided 

with those opportunities that facilitate growth and well-being. Such facilities provide 

a vital role in small communities and add economic vitality and a sense of place 

where quality of life is considered a major attraction for growth and development”. 

2. Support strong and sustainable economic growth, and a diversified economic base 

through: efficient land use and development patterns: an appropriate range and 

mix of economic activities and employment opportunities; and protection and 

preservation of employment areas. 

As required by the PPS, the County should promote economic development and 

competiveness by providing for a range of suitable sites for a wide range of economic 

activities that support a diversified economic base. The PPS states that sufficient land 

to accommodate an appropriate range and mix of employment opportunities must be 

provided to meet long-term needs. 

  

The PPS states that one of the ways to promote economic development and 

competitiveness is to take the needs of existing and future businesses into account. 

The County should consider policies that will create an attractive business 

environment that provides support to entrepreneurs and small business operations 

through programs and initiatives. In addition and as required by the PPS, the County 

should promote economic development and competitiveness by planning for, 

protecting and preserving employment areas for current and future uses.  The PPS also 

states that planning authorities have the ability to prevent the conversion of 

employment areas but can consider conversions as a part of a comprehensive review 

provided there is a demonstrated need. 

The OP can also contain policies that promote programs that assist in attracting skilled 

labour to the County, retraining of the existing labour pool and create opportunities 

42 


for retaining youth. Section 2.5.1 of the Prince Edward County OP states that “it is 

Council’s intention to aggressively market the County as a location for business in 

order to retain and attract young people to the County”. The Prince Edward County 

Official Plan calls specifically for “on-going employment and training opportunities in 

agriculture, tourism, commerce, industry and health care”. It is also important to 

ensure that the OP does not present barriers to employment opportunities, especially 

when considering efforts to increase the participation of under-represented groups 

such as immigrants in the economy. 

The County should also provide support for programs that benefit the local economy. 

The Province’s Rural Economic Development (RED) program assists with the costs of 

projects that benefit rural Ontario. The priorities of the RED program are to support 

the food processing sector, community revitalization and improve access to skills 

training and enhancement. An example of the RED program, was the training of 

workers and creation of an internship program for youth in the Peterborough area. 

The County can also consider policies that encourage the strengthening of 

relationships with educational institutions and also the establishment of new facilities 

in Elgin. Section 4.1.6 of the York Region Official Plan (proposed) states that the 

Region will “work with local municipalities to promote the Region as a location for 

knowledge-based activities by leveraging existing employment clusters and the 

Region’s highly skilled diverse workforce, and establishing and maintaining strong links 

to educational and research institutions and companies”. 

Also, the County should consider the merit of providing flexible policies to deal with 

unique economic issues and needs in different communities. Furthermore, the OP may 

contain policies that provide for a more streamlined or alternative planning process, 

and encourage same with local municipalities. The Planning Act now allows 

municipalities to use a Development Permit System (DPS) to eliminate duplication and 

streamline the planning approvals process, thereby encouraging development in a 

community. A DPS provides a municipality with the ability to create one consolidated 

planning review process for zoning, site plan and minor variance applications. In 

addition, a DPS allows municipalities to specify flexible provisions for land uses and 

development standards (e.g. minimums & maximums). The DPS also allows 

municipalities to attach conditions to permit approvals providing “a mechanism for 

municipalities to enhance environmental protection, ensure that negative impacts of 

development are mitigated, and facilitate community building, brownfields 

redevelopment and sustainable development”. 

Home-based businesses contribute to economic development by acting as incubators 

for small businesses, and promoting the efficient use of land and infrastructure. The 

Peterborough County Official Plan provides support for the creation of home-based 

businesses but leaves it to the local municipalities to adopt appropriate policies and 

criteria for such uses. 

The PPS and the County support economic and tourism development provided it is 

implemented in a sustainable manner. The Peterborough County Official Plan requires 

local municipalities to “consider and review economic development proposals on the 

basis of their potential impact to the watershed area” and natural areas. The Prince 

43 


Edward Official Plan also requires development to be conducted in an environmentally 

sustainable, and fiscally and socially sound manner. 

3. Promote the continued development of the environmental or ‘green’ industry 

As noted in the County’s Energy and Environment Sector Profile, the County is in a 

position of strength with respect to the energy and environment sector. The County 

OP can include policies that encourage the protection and further diversification and 

growth of local renewable energy projects. Elgin County should also consider policies 

that encourage the provision of infrastructure and programs that can support the local 

energy and environment sector. For example, Section 4.1.8 of the York Region Official 

Plan provides encouragement and support for the “development of a green industry 

cluster through training programs, business attraction, export development and other 

support programs”. 

4. Maintain, and where possible, enhance the vitality and viability of downtowns and 

main streets 

The County should recognize the importance of downtowns and main streets by 

creating policy for the protection and, where possible, the enhancement of the vitality 

and viability of these areas. The County could provide policies that encourage local 

municipalities to direct commercial growth to main streets and downtown areas. 

Community Improvement Plans 

Municipalities across Ontario are increasingly looking at Community Improvement Plans 

(CIPs) as a way to encourage and stimulate economic development and community 

revitalization. Part IV of the Planning Act enables CIPs in municipalities. CIPs are 

adopted by Council and are an ideal avenue for a municipality to support and fund 

private-sector initiatives that also serve an important public interest goal. Section 

28(2) of the Act permits the council of a local municipality, or a prescribed upper-tier 

municipality, to designate areas in the municipality as a community improvement 

project area, provided community improvement policies are contained within the 

Official Plan. Ontario Regulation 550/06 permits upper tier municipalities to prepare 

CIPs to deal with physical structure and associated facilities that form the foundation 

of development (e.g. communication systems; electric power systems; alternative and 

renewable energy systems; transportation corridors; water, wastewater and 

stormwater works and associated facilities). 

The municipality may also make grants or loans to property owners to carry out a 

community improvement plan. According to Section 28 (7.1), eligible costs for grants 

or loans include costs associated with “environmental site assessment, environmental 

remediation, development, redevelopment, construction and reconstruction of lands 

and buildings for rehabilitation purposes or for the provision of energy efficient uses, 

buildings, structures, works, improvements or facilities”. Section 28 (7.2) states that 

a “council of an upper-tier municipality may make grants or loans to the council of a 

lower-tier municipality and the council of a lower-tier municipality may make grants 

or loans to the council of the upper-tier municipality, for the purpose of carrying out 

a community improvement plan that has come into effect” provided provisions are 

contained in the applicable official plan. Including such a provision in the County Plan 

44 


may therefore be a consideration. 

5. Promote the development of brownfield sites 

Section 1.7.1 of the PPS states that long term economic prosperity should be 

supported by a variety of actions and approaches including promoting the 

redevelopment of brownfield sites. Brownfields are previously developed properties, 

that are now vacant or underutilized and may be contaminated, but have the potential 

for redevelopment. In small urban and rural municipalities, brownfield properties can 

include former commercial and industrial sites (e.g. scrap yards, dry cleaning 

establishments, textile mills), former land fill sites and service stations. Brownfield 

sites are important to the economic future of communities as these properties are 

often strategically located in or near downtown areas, shorelines and important 

transportation facilities. When brownfield sites are remediated and reused, 

communities benefit from increased tax revenues and local employment. In many 

municipalities, old buildings on brownfield sites are retained and utilized for a range 

of uses such as office buildings, restaurants, art studios and micro-breweries. Other 

benefits of brownfield redevelopment include removing soil and groundwater 

contamination and contributing to community quality of life. And even when 

remediated brownfield sites are not redeveloped, they can be used as parks, trails and 

other community uses. 

To understand the potential for a brownfield property to be remediated and 

redeveloped, it is important to understand the impact of risk on potential profit from 

the landowner’s perspective. As noted in the Province’s Practical Guide to Brownfield 

Redevelopment, “ the potential profit must be worth the unforeseen risks involved in 

remediation and redevelopment, such as discovery of new contamination, cost 

increase in remediation and delays in acquiring approvals”. Risk is inherent in 

brownfield redevelopment, even with the completion of Record’s of Site Condition, as 

often the true extent of remediation required is not apparent until the actual ‘digging’ 

commences. In addition, the strength of the local real estate market is critical to a 

landowner and/or municipality’s ability to encourage brownfield redevelopment. 

Market strength can be influenced by the amount of other development or 

redevelopment occurring in the neighbourhood, existing and planned infrastructure in 

the area, etc. Also, in most cases, the approvals process and actual remediation 

translate into additional cost and time required to complete a project. 

The Province has established requirements and standards for the assessment, 

remediation and safe development and use of brownfield properties. If it is suspected 

that a property is contaminated, a Phase 1 Environmental Site Assessment is prepared 

to examine the previous use of the property by interviewing past owners and reviewing 

historic records such as aerial maps and fire maps. If the Phase 1 ESA confirms the 

likelihood of contamination, the preparation of a Phase 2 ESA is required to determine 

the location and concentration of contaminants based on further site investigations, 

sampling and testing, etc.    

  

The County may decide to provide policies that provide general guidance and direction 

for inclusion in local OPs to promote the redevelopment of brownfield sites. The 

County may also consider policies that encourage programs that support brownfield 

45 


edevelopment such as the Brownfields Financial Tax Incentive Program (BFTIP) which 

is an initiative of the Provincial government intended to encourage the remediation 

and redevelopment of brownfield properties. Through the BFTIP, the Province can 

reduce or eliminate education property taxes for up to three years, with the option to 

apply for an extension. The approach for temporarily reducing or eliminating 

education property taxes is to match property tax reductions by municipalities. Also, 

the County could take a lead role in pursuing funding opportunities such as the 

Federation of Canadian Municipalities Green Municipal Fund which provides loans and 

grants to fund the preparation of feasibility studies and to undertake a range of 

projects including brownfield remediation and redevelopment. 

Case Example 

Today, Port Stanley is not a service centre but in the past, was a centre for heavy 

industry, summer tourism and busy commercial fishery. The Stork Club was a popular 

destination in Port Stanley for Big Bands and was constructed in 1926 and was 

unfortunately lost by fire in the late 1970’s 

In September 2010, the Municipality of Central Elgin acquired the Port lands from the 

Federal government and have identified a preferred plan for redevelopment of the 

area. The transfer also included agreement for Transport Canada to remediate the 

east side of the harbour, and a one-time $13.6 million contribution from Transport 

Canada to fund the harbour's operation, which includes dredging the harbour, and 

repairing or reconstructing the pier/breakwater. The Plan will provide for both active 

and passive recreational opportunities. The Plan also consists of a number of key 

elements including: 

· Extension of Main Street and construction of Stork Club – the extension of 

Main Street will provide a greater connection to the waterfront including a 

direct connection to a new Stork Club building. 

· Transient docks and public boat launch. 

· Commercial berthing in addition to the land-holdings, the Municipality has 

also taken possession of the dock walls which line the east and west shores 

at the mouth of Kettle Creek. In the future, the municipality may charge 

commercial users that berth along the dock wall. 

· Amphitheatre and central open space. 

· Water play and family picnic area. 

· West break wall – improvements to the break wall and improvements to 

allow for pedestrian access. 

· Dredging strategy – propose to retain a harbour depth appropriate for 

shallow draft vessels including recreational boats and commercial fishing 

vessels. 

46 


6. Promote opportunities for tourism development that are sustainable 

The PPS states municipalities should support long term economic prosperity through a 

variety of actions and approaches including providing opportunities for sustainable 

tourism development. The County Official Plan should contain policies that support 

the continued growth of the County-wide tourism strategy. OP policies would protect 

existing tourist destinations and areas, but would also support the establishment of 

new destinations and facilities (e.g. accommodations, recreational facilities). Section 

4.6.3.3 of the Peterborough County OP recognizes that “the development of new high 

quality attractions, facilities, services and events which will enhance and complement 

the existing tourism base”. It appears that Peterborough County provides general 

direction with respect to tourism but relies on local municipalities to designate lands 

for tourism uses in their Official Plans. 

The OP could also support specific tourism ‘themes’ such as the Elgin County Savour 

Elgin, Ports of Elgin County and Railway Capital of Canada. For example, the Prince 

Edward County OP states that “existing tourism uses and properties will be 

encouraged to be retained, redeveloped, expanded, and upgraded, wherever possible 

and appropriate. Any proposal to downzone tourist commercial uses to residential 

uses shall generally be discouraged. The proponent of any down-zoning of lands zoned 

tourist commercial shall be required to submit a report to the County justifying the 

proposal and outlining alternatives for the development of the property”. 

The Elgin OP should also encourage, define and establish criteria for the development 

of new forms of tourism, such as agri-tourism and eco-tourism. For example, 

ecotourism, which is generally permitted throughout Norfolk County, is defined as 

tourism that promotes “learning from and experiencing natural features and wildlife, 

and shall work in conjunction and cooperation with ecotourism operators and special 

interest groups”. 

The Prince Edward County Official Plan also identifies Potential Tourist Resort Areas 

(PTRA) which are “major tourist commercial and recreational focuses for future 

development in the County” and are identified on Schedule D of the Plan. The 

development of PTRA’s are intended to help the County achieve an increase in 

upscale roofed accommodation, an increase in recreational amenities and attractions, 

and tourism on a four-season basis by accommodating business meetings and 

conferences. Uses permitted in PTRA’s include tourist and marine commercial uses, 

recreational and open space uses, but industrial uses are not permitted. 

In addition, the Prince Edward County Plan identifies, protects and enhances Tourism 

Corridors which are those areas having the greatest potential for tourism. Tourism 

corridors are identified on Schedule D of the Plan and “were defined based on the 

occurrence and abundance of tourist attractions, resources and accommodations, as 

identified in the Background Report. These areas include the natural and cultural 

heritage resources and attractions of the County, such as Sandbanks Provincial Park, 

museums, festivals and the arts”. Tourism Corridors are also “intended to recognize 

the linkages between the public, non-profit and private sectors in supplying services 

related to tourism and the need to protect the natural environmental and cultural 

attractions of the County”. 

47 


7. Protect agricultural areas and diversify the agriculture sector 

The OP should recognize the economic importance of agriculture to the County. There 

are 2 main approaches to supporting the agricultural economy: (1) protecting 

agricultural lands and the ability of farmers to operate and expand their operations; 

and (2) provide opportunities for farmers to explore new businesses subject to the PPS 

and certain criteria. The PPS states that long term economic prosperity should be 

supported by promoting the sustainability of the agri-food sector. Section 3.2.3 of the 

Economic Development Section of the Prince Edward County Official Plan provides 

support for “initiatives in the agricultural sector to prevent further job losses, attract 

new farmers, and to keep as many farms in business as possible” including: 

d) promotion and encouragement of associated food processing and value added 

technology facilities 

e) support for growth in the manufacturing/distribution sectors to provide 

farmers with a greater opportunity to diversify their operations' sources of income 

f) encouragement of increased share of tourism expenditures through 

development of bed and breakfast operations, farm vacation facilities, cottage 

establishments or cabins, roadside markets and related activities which contribute 

to farm incomes, provided that they do not conflict with agricultural operations 

or with applicable Provincial safety and health legislation 

8. Invest in infrastructure 

It was suggested in the Elgin/St. Thomas Tourism Development Strategy and Marketing 

Plan that the provision of some regional facilities and improvements to the 

transportation system could attract greater business investment and tourism activity. 

The County and partner municipalities should work together to plan for and provide 

infrastructure required to support the local economy. Policies in the OP could support 

improvements and expansion to infrastructure including transportation and 

communications, and support services. 

The PPS states that long term economic prosperity should be supported by providing 

an efficient, cost-effective and reliable multi-modal transportation system. The PPS 

also states that safe and energy efficient transportation systems should be provided, 

based on projected needs, to facilitate people and goods movement, and that 

planning for land uses in the vicinity of airports. The County could provide policy 

support encouraging the design of communities and street networks that allow for 

efficient goods movement, including efficient connections with Highway 401 and the 

St. Thomas Airport. Also, the County can encourage the business community to 

consider modes of travel and goods movement that are more energy efficient. 

48 


5.0 CONCLUSION 

In this Paper, we have provided an overview of the state of the economy and tourism 

in Elgin, and have reflected on some of the anticipated economic and tourism trends 

in the County. We have also discussed relevant Provincial legislation and policy, and 

County plans and studies in an effort to identify economic development and tourism 

related goals, objectives and policy requirements to be considered in preparing the 

County’s Official Plan. Lastly, we have discussed a number of policy themes and 

possible approaches in preparing the County’s Official Plan. One of the many ways to 

assess the eventual recommended approach and policies in the Official Plan is to 

utilize the questions found in the Ministry of Municipal Affairs and Housing Municipal 

Quality of Life for Economic Prosperity Handbook. 

In 2005, the Ministry released the Handbook to “help give municipalities insight into 

how they can make the connections between quality of life and economic 

competitiveness and prosperity”. It is noted in the Handbook that municipal goals of 

job creation, business retention and attraction, and building a strong tax base are 

nothing new but given “today’s fluid marketplace, municipalities face challenges that 

include diversifying their economies, making infrastructural investments and linking 

labour skills and knowledge with business needs”. Municipalities can distinguish 

themselves and create competitive advantages by preserving and enhancing natural, 

social, cultural and physical features, and by creating an attractive community where 

people and businesses want to live, work and play. The Handbook provides examples 

of approaches to creating and building on a sense of place and enhancing quality of 

life including: 

· strengthening community assets through revitalization and rehabilitation of 

commercial or residential areas 

· returning former industrial lands (brownfields) to productive uses 

· conservation of historic buildings 

· taking a leadership role in the arts and culture sectors 

The Handbook provides a tool-kit to test municipal readiness for economic prosperity 

by helping municipalities examine decisions and priorities for their economy, 

environment, social character and land-use planning, through a questionnaire. The 

Handbook also provides a number of case examples of Ontario communities “making 

the link between economic prosperity and quality of life”. A copy of the Handbook 

with the complete questionnaire is provided in Appendix 3 of this Paper. 

49 


Norfolk County Official Plan 

APPENDIX 2 

Other County & Regional Official Plan policies 

The Norfolk County Official Plan sets out a series of strategic goals and objectives 

including a strong and diversified economy with the goal of creating: 

“a planning framework that promotes a flexible and adaptable economic 

environment that encourages investment and a broad range of employment 

opportunities, supports the growth of tourism in the County, protects the 

vitality and growth of the agricultural industry, and revitalizes Downtown 

Areas while recognizing retail trends and community needs” 

Objectives to achieve this goal include: 

a) Guide the maintenance and growth of economic activity in the County 

through the development of proactive and flexible land use policies for areas 

of economic activity. 

b) Promote the development of new businesses and economic activities that 

are not currently available in the County to help maximize employment 

opportunities through land use policies that permit and encourage the 

development of such uses. 

c) Promote employment opportunities that utilize local economic and natural 

resources. 

d) Support business and industrial employment diversification through flexible 

land use policies and small business development. 

e) Foster tourism potential along the lakeshore and in other areas of the 

County through the protection and enhancement of the County’s unique 

characteristics. 

f) Ensure that lakeshore resources are managed and, where appropriate, 

developed to promote tourism development and economic growth. 

g) Recognize and preserve the rural context and agricultural heritage as a 

significant factor contributing to the County’s economy. 

h) Ensure the continued economic strength of agriculture and the viability of 

farm operations by protecting agricultural activities and the agricultural land 

base from the intrusion of incompatible uses. 

i) Recognize aggregate, mineral and petroleum resource potential and 

establish a framework for the long-term use of these resources. 

50 


j) Provide for emerging retail trends that meet the needs of the County 

through the establishment of a strong and adaptable commercial structure 

that is focused on the Downtown Areas of the County. 

k) Focus higher order commercial uses, such as department stores and food 

stores, in the Downtown Areas and along key transportation corridors in the 

Urban Areas. 

l) Encourage the improvement and revitalization of the Downtown Areas as 

healthy and vibrant areas for mixed commercial, residential, cultural, social, 

tourism and entertainment uses, while recognizing and conserving their built 

and cultural heritage. 

Section 4.14 of the Norfolk Official Plan contains policies respecting an Urban 

Waterfront designation which is “intended to accommodate commercial facilities and 

services in convenient locations to serve the needs of residents and tourists” and is 

only intended to be applied in urban areas located in proximity to the water’s edge of 

the Lake “to promote the ongoing development of tourist destinations, and support 

existing residents”. 

Section 5 of the Norfolk Official Plan, “Ensuring Economic Vitality”, begins by stating 

that “maintenance of economic vitality and fostering economic development are 

critical underlying components of the planning framework of this Plan. The County 

encourages economic development across the County in a manner that balances 

social, cultural, natural environment and other initiatives. This Plan recognizes the 

pre-eminence of agriculture as the principal economic activity in the County”. 

The policies of the Official Plan Norfolk support the objectives of the County’s Tourism 

and Economic Development Strategy including: 

“i) enhancing the profile of the County and its Urban Areas as investment 

opportunities; 

ii) identifying growth sectors and new economic opportunities for the County 

in the land use policies of this Plan; 

iii) ensuring that the land use policies of this Plan maintain the pre-eminence 

of agriculture as the principal economic activity in the rural components of 

the County; 

iv) strengthening the County’s economic base through a greater diversification 

of available business and employment land; 

v) improving opportunities for local industries and businesses, especially small 

businesses within the County; 

vi) addressing the role of tourism in the County’s economic base; 

vii) promoting the County as a destination for tourists; 

51 


viii) acknowledging the role of the Urban Areas in influencing the County’s 

economy; 

ix) setting out general development and servicing constraints for commercial 

and industrial uses; and 

x) addressing the distribution and demand for serviced industrial land. 

In Section 5.3, Locations of Economic Activity, the Norfolk Plan identifies the following 

policies: 

“a) The County shall act to capitalize on the opportunities for economic 

activity by adopting different strategies for different parts of the County in an 

effort to focus specific economic activities in close proximity to the resources, 

amenities and forms of existing development they require to thrive. 

b) Industrial/Business Park land shall be focused in Urban Areas and will be 

located adjacent to or in close proximity to Provincial Highways and arterial 

roads, where an appropriate level of municipal services are provided. 

Notwithstanding the foregoing, rural industrial and commercial operations 

shall be permitted in accordance with the policies of Section 4.2 (Agricultural 

Designation) of this Plan. 

c) Commercial and office employment uses shall be encouraged in the 

Downtown Areas to create strong central business district environments. 

d) Commercial uses which support agricultural activities may be permitted in 

rural areas where proximity to agricultural operations is required. 

e) Tourism uses shall be encouraged in close proximity to areas of natural and 

recreational amenity, areas of natural heritage appreciation, the Lakeshore 

Area, the Downtown Areas and waterfronts of Urban Areas, where 

appropriate. 

f) The County supports the use of Community Improvement Plans to revitalize 

underutilized land and the Downtown Areas. 

g) The County will support the expansion and development of transportation, 

parking and telecommunications infrastructure to increase the locational 

advantage of existing and proposed business and employment uses. 

h) Proximity to Lake Erie represents a critical locational advantage to the 

County in terms of wind energy production. In accordance with the policies of 

this Plan, the County shall support and promote wind energy generation, 

where appropriate.” 

Section 5.4 of the Official Plan encourages tourism in the County, and in particular to 

urban areas, Lake Erie shoreline, resort and recreation areas and “areas of 

agricultural, rural and natural amenity”. The following policies in the Plan encourage 

tourism in the County: 

52 


“a) The County promotes the maintenance and improvement of existing 

tourism and tourist destination-oriented uses in the County and encourages 

the establishment of additional tourism opportunities in the form of 

accommodation facilities, and appropriate entertainment and recreational 

attractions. 

b) The County recognizes and supports the development of tourism uses within 

the Urban Areas and specifically the Downtown Areas that will encourage 

visitor stops, provided such uses do not detract from the principal functions 

and uses of these areas. Such initiatives may include support for: 

i) including initiatives to enhance the Downtown Area in conjunction with 

increased retail development east of Norfolk Street; 

ii) promotion of a multi-purpose trails system connecting Norfolk’s Urban 

Areas and natural amenities, including Simcoe as a destination on the 

recreational trail/utility corridor linking Simcoe and Port Dover, a 

waterfront trail linking Port Dover to Long Point, the Trans Canada 

Trail, the Simcoe-Waterford-Brantford trail and the Delhi-Simcoe- 

Brantford trail; 

iii) new and existing tourism related attractions such as a craft market, 

farmer’s market, summer theatre and outdoor festivals, particularly if 

such uses are located to encourage interaction with the major activity 

nodes in the Downtown Areas; 

iv) establishment of Heritage Districts to promote cultural heritage 

resources, particularly in the Downtown Areas; 

v) tourism related projects as a component in the redevelopment or 

conversion of older buildings and underutilized sites in and around the 

Downtown Areas; and 

vi) bed and breakfast accommodations are permitted in single detached 

residential dwellings subject to criteria to be established in the Zoning 

By-law. 

c) Agriculturally related and rural resource-related tourism opportunities shall 

be encouraged and shall be permitted in the Agricultural Designation, subject 

to the policies of Section 4.2.2 (Agricultural Designation – Land Use Policies). 

d) The County shall explore opportunities to identify destinations for tourism 

and recreation throughout the County. 

e) The development and promotion of scenic, recreational and educational 

parkways with well signed and interesting attractions along the Lake Erie 

shore and throughout the County shall be supported by the County. 

f) The County shall consider opportunities to establish the existing lakeshore 

roads as a parkway, providing a multi-purpose route along the waterfront. 

53 


g) The County shall support ecotourism destinations that promote learning 

from and experiencing natural features and wildlife, and shall work in 

conjunction and cooperation with ecotourism operators and special interest 

groups. Subject to the policies of this Plan, ecotourism shall generally be 

permitted throughout the County. 

h) The County supports the maintenance and improvement of hunting and 

fishing opportunities and hunting and fishing programs initiated by senior 

levels of government and agencies to improve this component of the tourism 

industry. 

i) The County supports the maintenance and improvement of accommodations 

for tourists, including hotels, motels, bed and breakfast establishments and 

camping facilities. 

Section 5.6 of the Plan, Employment Activity, contains policies whereby the County 

encourages and supports “new industrial technologies, new employment sector 

development and local employment initiatives” by: 

• monitoring the supply of employment and industrial land to ensure that a 

sufficient supply is available to flexibly accommodate potential future 

needs 

• promoting the reuse of vacant industrial and other underutilized sites 

• ensuring that the inventory of designated vacant Industrial/Business Park 

land includes a full range of parcel sizes and locational characteristics, 

including small parcels to suit the needs of new and innovative industries 

Section 5.7 of the Official Plan encourages remediation and redevelopment of 

contaminated sites. 

Chatham-Kent Official Plan 

The Chatham-Kent Official Plan was approved by the Ministry of Municipal Affairs and 

Housing in 2008 and consolidated in June 2010. 

Section 3 of the Plan, “Developing a Thriving Economy”, and in particular Section 3.3 

Official Plan Context states that “the Business Retention, Business Attraction and 

Highway 401 Development Programs in the Economic Development Strategy: Moving 

the Economy Forward rely upon the Official Plan to provide a physical context for the 

planning and implementation of business opportunities in Chatham-Kent”. 

The Plan also states that “providing a variety of locations across Chatham-Kent for 

industrial and commercial development promotes a more equitable distribution of 

housing and job opportunities across the community”. 

The Plan, based on the County’s Economic Development Strategy, targets certain 

sectors for growth including manufacturing and tourism. The Plan states that the 

County should investigate a range of tourism opportunities in the areas of heritage, 

54 


water activities, camping, nature, recreational vehicle camping, golf, agri-tourism, 

tournaments and sports, and family activities. 

Section 3.5 of the Plan contains several objectives and policies including to: 

• Encourage and accommodate economic activities that contribute to the 

protection and strengthening of the industrial land base in the Municipality. 

• Encourage private sector investment/re-investment in the reuse/redevelopment 

of underutilized and/or abandoned Brownfield‖ 

industrial lands in the Primary and Secondary Urban Centres for other viable 

non-industrial uses. 

• Primary and Secondary Urban Centres and the Highway 401/Bloomfield 

Road interchange shall be the focal areas for serviced industrial 

development in Chatham-Kent. Some industrial development may also be 

permitted in selected Hamlets and Rural Settlement Areas subject to 

policies in this Official Plan. 

County of Middlesex Official Plan 

The County of Middlesex Official Plan was approved by the Province in 1997, modified 

by the Ontario Municipal Board in 1999 and consolidated in August 2006. 

Section 2.3.4, “Economic Development”, of the Plan states that economic 

development is an important component of the County’s Growth Management policy 

framework. Many long-term goals and objectives depend on economic activity and the 

opportunity for residents to live and work in the County. 

The policies of the Plan call for the County to: 

a) monitor the supply of employment land to ensure that a sufficient supply is 

available throughout the County and particularly in those municipalities with 

access to provincial highways and major arterial roads; 

b) cooperate with local municipalities, the business community and other 

agencies to ensure that employment centres are served by modern 

infrastructure systems including road, rail, and telecommunications networks; 

c) encourage local municipalities to provide a balanced mix of housing to 

ensure a sufficient labour force and reduce the need for commuting; 

d) encourage local municipalities to promote a high standard of urban design 

to create healthy communities which attract investment; 

e) support local municipalities to promote economic development 

opportunities adjacent to Provincial 400 series highways where justified 

through an amendment to the local official plan; and, 

f) support the retention of educational, health, cultural and religious facilities 

to ensure that the County’s communities are provided with those 

55 


opportunities that facilitate growth and well-being. Such facilities provide a 

vital role in small communities and add economic vitality and a sense of place 

where quality of life is considered a major attraction for growth and 

development. 

56 


MUNICIPAL 

QUALITY OF LIFE 

FOR ECONOMIC 

PROSPERITY 

BUILDING STRONG COMMUNITIES

Important Notice to Users 

The Ministry of Municipal Affairs and Housing has prepared this handbook to help give municipalities insight 

into how they can make the connection between quality of life and economic competitiveness and prosperity. 

However, the handbook deals in summarized fashion with complex matters and reflects legislation, practices 

or projects that are subject to change. Municipalities are responsible for making local decisions, including 

compliance with any applicable statutes or regulations. 

For these reasons, the information in this handbook should not be relied upon as a substitute for specialized 

legal or professional advice in connection with any economic development strategy or related matter. We 

recommend that municipalities obtain independent legal or professional advice when they evaluate or develop 

their own community-development programs and strategies. The user is solely responsible for any use or 

application of the handbook. The ministry does not accept any legal responsibility for the contents of the 

handbook or for any consequences, including direct or indirect liability, arising from its use. 

Produced by the Ministry of Municipal Affairs and Housing 

Provincial Planning and Environmental Services Branch 

777 Bay Street, 14 th Floor 

Toronto, Ontario M5G 2E5 

www.mah.gov.on.ca 

Spring, 2005

Table of Contents 

Who Should Use This Handbook? . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .2 

Linking Quality of Life and Economic Prosperity . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .3 

Building Quality of Life with Community Assets . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .4 

Is Your Municipality Ready? . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .5 

Questionnaire 

Economy . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .7 

Environment. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .8 

Social Character . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .9 

Land-Use Planning . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .10 

Summary of Results. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .12 

Positioning Your Municipality . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .14 

On the Forefront: Municipal Profiles . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .15 

Brockville . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .17 

Cobourg . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .19 

Cornwall . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .21 

Elliot Lake . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .23 

Greater Sudbury . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .25 

Kitchener . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .27 

London . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .29 

Ottawa . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .31 

Sault Ste. Marie . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .33 

Temiskaming Shores . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .35 

Thorold . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .37 

Waterloo Region . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .39 

West Toronto Junction . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .41 

For More Information 

Municipal Services Offices . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .43 

Rural Development Division. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .44 

1 B u i l d i n g S t r o n g C o m m u n i t i e s

Who Should Use This 

Handbook? 

The factors affecting economic prosperity matter to municipal councils, chief 

administrative officers, planners, economic development officers, policymakers, 

architects, developers and citizens. 

If your municipality is creating a strategic economic plan, revisiting an existing 

strategy, or embarking on a collaborative approach to economic development with 

neighbouring municipalities, this handbook can be used to assess local decisions 

and priorities. It can also assist in making a connection between quality of life goals 

and everyday decision-making. 

For municipalities who have already connected quality of life and economic 

competitiveness and prosperity, this handbook may be helpful in monitoring current 

performance and evaluating where further community improvements can be made. 

This Handbook: 

offers a tool to test municipal readiness for economic prosperity. It can help 

municipalities examine decisions and priorities for their economy, environment, 

social character and land-use planning; and 

showcases Ontario communities that are at the forefront of making the link 

between economic prosperity and quality of life. 

If your municipality is at a different stage 

of economic development, you may 

want to take a look at this handbook’s 

predecessor, Municipal Readiness 

For Economic Development (2000). 

It is focused on investment readiness 

through expanding contacts, capitalizing 

on land-use planning resources and 

marketing community assets. 

To obtain a copy, or for more information 

on arranging a workshop to discuss its 

contents, contact your local Ministry of 

Municipal Affairs and Housing Municipal 

Services Office or visit our home page 

Web site, Resources for Municipalities, 

Economic Development / Finance, at: 

www.mah.gov.on.ca 


Linking Quality of Life and 

Economic Prosperity 

Canada and its cities repeatedly do well in international rankings of quality of 

life. The Canadian economy, in which Ontario is a leader, is also showing strong 

performance signs. 

Traditionally, physical proximity to resources and markets were primary determinants 

for economic success. In today’s fast-paced global economy, however, quality of 

life is also seen as an essential ingredient for economic growth, competitiveness 

and prosperity. For example, economic trends suggest a very strong relationship 

between creativity, talent and knowledge-based businesses. 

Municipalities depend on economic development and growth to accomplish their 

goals. And while municipal goals such as job creation, retaining and attracting 

businesses, ensuring an adequate range of housing options and building a 

strong tax base are not new, how they are best achieved is changing. In 

today’s fluid marketplace, municipalities face challenges that include diversifying 

their economies, making infrastructural investments and linking labour skills and 

knowledge with business needs. 

In addition to market influences, there can be less tangible but equally important 

factors that help municipalities create their own competitive niche and become 

appealing places to live and work. These factors involve a sense of place, local 

character and diversity of amenities. Many consider these factors to be part of a 

community’s quality of life and will take them into account when making decisions 

on where to live and carry on business. 

“While the GDP is a useful measure of the gross 

expenditures or income of an economy, it is an 

inadequate measure of the overall economic, 

social and environmental well-being of households, 

communities, businesses, governments and the 

environment.” 

Source: Pembina Institute, GPI, Indicator #1, 

Economic Growth, April 2001. 


Building Quality of Life 

with Community Assets 

Business leaders around the world recognize that quality of life is a key component 

for economic prosperity. A municipality can capitalize on this knowledge by 

establishing a clear community vision and specific community goals that build local 

quality of life. 

What is quality of life and how does it affect economic prosperity? Quality of 

life can best be described as the degree to which people have a sense of well-being 

in relation to the space in which they live, work and play. Generally, communities 

that are safe, attractive, environmentally sound, diverse and culturally rich are not 

only desirable places to live, but tend to thrive economically. 

Who defines quality of life? Each community defines quality of life according to 

its own unique character, community strengths and needs. Recognition of these 

locally-specific aspects means that municipalities can make decisions that positively 

affect the financial, environmental, social and physical aspects of their community’s 

quality of life. 

Investing in Place 

Building on a sense of place and enhancing quality of life can be done in many ways. 

Some examples include strengthening community assets through revitalization and 

rehabilitation of commercial or residential areas, returning former industrial lands to 

productive uses, historic building conservation or taking a leadership role in the arts 

and culture sectors. By investing in the preservation and enhancement of natural, 

social, cultural and physical features, municipalities can distinguish themselves and 

add to their uniqueness. 


Is Your Municipality Ready? 

Are quality-of-life decisions being made that strengthen your municipality’s economic 

competitiveness and prosperity? 

The following questionnaire is designed to help you explore this question. 

The questionnaire is divided into four categories containing two subcategories each. 

Each category represents key quality-of-life components that can be influenced by 

municipal decisions and priorities, as follows: 

Economy - Opportunities 

- Creativity 

Environment - Environmental Management 

- Sustainability 

Social Character - Capacity Building 

- Diversity 

Land-Use Planning - Development Patterns 

- Resources 

How to Use the Questionnaire 

1. Consider your reasons for completing the questionnaire. Are you assessing 

municipal decisions and priorities to see how they relate to quality of life? Are 

you monitoring the implementation of current municipal quality-of-life priorities? 

Depending on your stage of economic development, you may choose to weigh 

the relative importance of each of these sections differently. 

2. Work through each category and record your results using the colour bar. 

A consistent approach is recommended when answering the questions. For 

example, are your answers related to long-term or short-term strategic actions? 

Is your perspective the neighbourhood, the municipality or the region? 

3. Record your results for each of the categories in the Summary of Results 

chart. 


ECONOMY 

A healthy and vibrant local economy is a goal for all Ontario 

municipalities. Whether the focus is on attracting investment, 

building and supporting the growth of new industries and businesses 

or retaining existing businesses, municipalities understand the 

importance of economic development. Fostering creativity and 

generating new development opportunities can improve local 

economic performance. 

Are your municipality’s economic decisions contributing to 

quality of life? 

ENVIRONMENT 

How local resources are managed and what actions are taken 

to ensure a healthy environment are questions relevant to 

communities across Ontario. Although the answers often require 

co-operation from all levels of government, local businesses and 

the public, municipalities can play a strong role in setting priorities 

and co-ordinating strategies to meet local challenges. 

Is your municipality making decisions that are positively 

affecting the environment and contributing to quality of life? 

6

OPPORTUNITIES 

Business and Employment Variety 

1. Does your municipality actively encourage market 

diversification through policies, programs and partnerships 

(e.g., through business-improvement areas, small business 

programs, community development corporations, etc.)? 

Image 

2. Does your municipality market/brand and invest 

in its economic, environmental, social and/or physical 

uniqueness (e.g., through comprehensive web sites, 

communication plans, marketing strategies, public art, 

public open spaces, etc.)? 

Advanced Technology 

3. Has your municipality improved its technology 

infrastructure through the use of resources and processes 

necessary to work with innovative knowledge-based 

businesses (e.g., high speed, broadband, interactive, and 

wireless communication infrastructure, on-line government 

services, GIS applications, etc.)? 

Information Process 

4. Is your municipality able to provide timely information 

to prospective investors and developers (e.g., directory 

of available land, existing business statistics, community 

profiles, land-use mapping, development charges/taxation 

information, community guides, knowledgeable staff, 

etc.)? 

OPPORTUNITIES 

1 

2 

3 

4 

CREATIVITY 

5 

6 

7 

8 

Non-priority 

ECONOMY 

CREATIVITY 

Promoting Excellence 

5. Does your municipality encourage and recognize 

excellence and innovation by supporting new projects, 

products, services and/or technologies (e.g., through 

business incubators, award programs, community 

partnerships to encourage cluster development, etc.)? 

Financial Tools 

6. During the last five years has your municipality 

demonstrated a creative use of existing land-use planning 

or municipal financial tools available to encourage new 

development (e.g., community-improvement plans, grants 

and loans, tax increment-based financing, etc.)? 

Partnerships 

7. Does your municipality work with community groups, 

business groups, the private sector and/or neighbouring 

municipalities in order to increase competitiveness and 

maximize resources (e.g., cooperative marketing 

campaigns, regional or area-wide economic or development 

strategies, etc.)? 

Education and Research 

8. Does your municipality collaborate with educational, 

research and technological institutions on development 

initiatives (e.g., for workforce skills development, long- 

distance learning opportunities, knowledge sharing, 

technology transfers, etc.)? 

1 

2 

3 

4 

5 

6 

7 

8 

Performance Leader

ENVIRONMENTAL MANAGEMENT 

Growth and Infrastructure 

9. Does your municipality’s long-term decision-making 

process ensure that the infrastructure necessary to 

accommodate cost-effective and compact growth is in 

place (e.g., linking land use, transportation, housing, 

sewage treatment capacity, energy and water supply, 

waste management, telecommunications, etc.)? 

Cross-Boundary Coordination 

10. Does your municipality combine resources and partner 

regionally for infrastructure and/or capital projects (e.g., 

environmental protection, use of resources, maximizing 

available infrastructure, etc.)? 

Green Space 

11. Does your municipality continually invest in improving 

or increasing its open/green spaces throughout the 

community (e.g., adding walking networks and/or bike 

paths, connecting recreational and parklands areas, treeplanting 

programs, etc.)? 

Natural Heritage Protection 

12. Has your municipality protected locally important 

natural areas, resources and unique landscapes beyond 

what is mandated by the provincial government (e.g., 

through growth boundaries, easements, designating locally 

significant natural features, bylaws, etc.)? 

ENVIRONMENTAL MANAGEMENT 

9 

10 

11 

12 

SUSTAINABILITY 

13 

14 

15 

16 

Non-priority 

ENVIRONMENT 

SUSTAINABILITY 

Waste Diversion 

13. Does your municipality have a waste management 

strategy that encompasses a range of alternatives to divert 

waste from landfill sites (e.g., recycling, composting, waste 

reduction, chemical drop-off centres, etc.)? 

Air, Water and Soil Protection 

14. Does your municipality have a strategy in place to 

improve air, water and soil quality (e.g., local policies and/or 

protocols, municipal targets, bylaws, contaminated land 

cleanup initiatives, nutrient management plans, etc.)? 

Resources Conservation 

15. Does your municipality encourage programs and 

practices that support resource conservation (e.g., energy 

conservation and efficiency, green technology, use of 

recycled materials, water conservation, ecosystem-based 

planning, etc.)? 

Health 

16. Does your municipality invest in the social infrastructure 

necessary to service the community and support overall 

community health (e.g., health networks, physician 

recruitment, community education, etc.)? 

9 

10 

11 

12 

13 

14 

15 

16 

Performance Leader

CAPACITY BUILDING 

Volunteerism 

17. Does your municipality have an active community 

volunteer network capable of sustaining a project over an 

extended period of time? 

Community Participation 

18. Does your municipality work collaboratively with groups 

and individuals to resolve issues and achieve outcomes 

beyond consultation processes required by legislation 

(e.g., facilitating and/or coordinating events, providing 

information about community services and activities, 

connecting people to existing networks, partnering, etc.)? 

Inclusiveness 

19. Does your municipality ensure a diverse range of 

interests is reflected when making decisions about growth/ 

development in your community (e.g., range of interests 

include income, education, occupation, culture, age, ability, 

neighbourhood, etc.)? 

Leadership 

20. Does your municipality support and foster grassroots 

community groups involved in initiatives to improve 

people’s lives and build stronger communities (e.g., by 

providing training, research, facilities, professional advice, 

funding, etc.)? 

CAPACITY BUILDING 

17 

18 

19 

20 

DIVERSITY 

21 

22 

23 

24 

Non-priority 

SOCIAL CHARACTER 

DIVERSITY 

Community Identity 

21. In your municipality, are geographic landmarks, 

heritage sites, structures and buildings used to foster 

civic pride and a shared community identity (e.g., 

community- education programs, restoration of buildings or 

landscapes, site-information plaques, events celebrating 

local achievements, etc.)? 

Vitality 

22. Does your municipality encourage, support and invest 

in activities and services to meet the needs of a diverse 

mix of people (e.g., from different social, economic, ethnocultural 

and lifestyle groups)? 

Cultural Heritage 

23. Does your municipality have a strategy for taking action 

to conserve cultural-heritage resources so that they remain 

attractive and retain their architectural integrity (e.g., 

suggesting alternatives to demolition, providing financial 

incentives, encouraging rehabilitation and reuse, etc.)? 

Arts and Culture 

24. Does your municipality have a strategy for public 

investment and promotion in your community’s cultural 

infrastructure and tourism (e.g., arts, local events/festivals, 

libraries, museums, etc.)? 

17 

18 

19 

20 

21 

22 

23 

24 

Performance Leader

DEVELOPMENT PATTERNS 

Housing Choice 

25. Does your municipality encourage a range of housing 

options to meet the market needs for different social and 

economic groups (e.g., housing for a range of age, income 

and ability groups)? 

Access 

26. Does your municipality foster safe, attractive, accessible 

spaces (e.g., investing in sidewalks, street lighting, curb 

cuts, street/traffic signs, winter snow clearing, transit 

availability, promoting street-level activities through the 

redevelopment of vacant or underused lands etc.)? 

Community Design 

27. Does your municipality encourage and support design 

that emphasizes local identity, ensures physical safety, 

attracts visitors, facilitates community interaction and 

promotes the integration of land uses (e.g., through planning 

guidelines, community/developer education, etc.)? 

Development Form 

28. During the last five years, has the pattern of new 

development in your municipality supported a dynamic and 

integrated community (e.g., through a mix of employment, 

retail, shopping, schools, recreation, etc.)? 

DEVELOPMENT PATTERNS 

25 

26 

27 

28 

RESOURCES 

29 

30 

31 

32 

Non-priority 

LAND-USE PLANNING 

RESOURCES 

Land-Use Planning Tools 

29. During the last five years, has your municipality 

demonstrated a creative use of existing land-use planning 

tools to encourage new development (e.g., using land-use 

designations, flexible zoning or policies to encourage infill 

development, neighbourhood rejuvenation, brownfields 

redevelopment, nodal development, etc.)? 

Reducing Barriers 

30. Does your municipality actively work to encourage 

new development (e.g., providing guidelines or flow charts 

on how to move through the planning process, having 

general enough policies to reduce the need for official plan 

amendments for development proposals, etc.)? 

Staff Capacity 

31. Does your municipality invest in the continuous 

development of its staff (e.g., providing staff training and 

education, mentoring, professional networking, field trips, 

workshops, journal/ newsletter subscriptions, etc.)? 

Collaboration 

32. Does your municipality foster partnerships and 

advocate a multi-disciplinary approach to decision-making 

on new development projects at the staff level (e.g., 

connecting architecture, landscape architecture, planning, 

engineering economic development, etc.)? 

25 

26 

27 

28 

29 

30 

31 

32 

Performance Leader

11 


All municipalities, regardless of size, can benefit from marketing 

their unique identity and social character. While often interpreted 

as the potential to attract tourism, investing in social character has 

other benefits as well. Municipalities can also promote creative 

problem-solving and build on the strength of community assets with 

a comprehensive decision-making process rooted in community 

participation and collaboration. 

Is your municipality supporting its social character as a 

building block for quality of life? 


Land-use planning enables municipalities to shape the physical 

form and function of their communities. Planning decisions 

influence where homes and businesses are to be built, where 

parks and schools should be located, and where roads, sewers 

and other essential services should be provided. 

Is your municipality making land-use planning and policy 

decisions that are positively contributing to the quality of life 

in your community?

Summary of Results 

Average your results for each of the questionnaire’s eight subcategories and 

record them in the Summary of Results chart. 

Shade the part of the Summary of Results chart that most accurately reflects 

your performance in each category (sample on page 13). 

For each category, determine where you are on the scale. 

Performance Leader 

Non-priority 

Opportunities Creativity 

ECONOMY 

Environmental 

Management 

Sustainability 

ENVIRONMENT 


Capacity Building Diversity 

Opportunities Creativity 

Environmental Management Sustainability Capacity Building 

Diversity Development Patterns 

Resources 

ECONOMY 

Development 

Patterns 

S A M P L E 



ENVIRONMENT SOCIAL CHARACTER 


Resources 

Performance Leader 

Non-priority 


Positioning Your Municipality 

Each municipality must consider how they can enhance their community’s quality 

of life and economic well-being. Strategic planning and positioning will depend on 

local needs, community assets and market conditions. Nevertheless, despite the 

differences amongst municipalities, there are actions being taken and tools being 

used by those engaged in economic development and quality-of-life community 

building. They include, but are not limited to the following: 

Municipal, business and community leadership and cooperation 

Well-defined growth management plans 

Community-improvement plans 

Corporate strategic plans 

Municipal works programs 

Comprehensive marketing strategies 

Public/private partnerships 

Inter-governmental funding partnerships 

Volunteer support for community initiatives 

Data collection and analysis 

Incentive programs (e.g. grants, loans, heritage tax incentives, tax 

increment-based financing) to encourage private sector rehabilitation and 

redevelopment 

If you want to learn more about how some municipalities are successfully applying 

these approaches and tools, read the municipal profiles in the next section - On the 

Forefront. 


On the Forefront: 

Municipal Profiles 

These profiles illustrate how some small, medium and large municipalities 

are capitalizing on local strengths, engaging in public/private partnerships and 

implementing strategic and creative ways of using public dollars to encourage the 

revitalization of their communities. They are developing and refining land-use policy 

documents and competitive growth strategies to reflect aspects of quality of life and 

economic development that are local priorities. 

Sault Ste. Marie 

Elliot Lake 

Toronto 

Waterloo Region 

Kitchener 

London 

Temiskaming 

Shores 

Greater 

Sudbury 

Thorold 

Ottawa 

Cobourg 

Cornwall 

Brockville 



On The Forefront ... 

Brockville 

Population (2001): 21,375 

Catalyst 

Accomplishments 

Brockville’s Vision 20/20 is a strategic plan that provides a 20-year 

blueprint for the city’s economic growth and investment attraction 

goals. Building on an already strong technology base, the plan relies 

on key factors such as municipal and private sector leadership, 

community support, sustained investment in telecommunications 

infrastructure and human resources training. 

Marketing 

To market the city as a high technology centre and a natural extension of the high-tech communities in the 

Ottawa region, Brockville is promoted as the ideal place for technology companies: the “South End of Silicon 

Valley North”. One successful example includes a new call centre, which resulted in about 200 jobs in 2002. 

In the next few years, employment is expected to increase by 400 to 500 positions. 

Building Connectivity 

The surrounding area is also included in the strategic plan. For example, two localbased 

telecommunication companies and a non-profit economic development 

agency have joined to build a high-speed model network for Brockville and 

surrounding small towns and rural communities, making this area the most 

connected jurisdiction in Canada. This model may be replicated across the country 

as part of Industry Canada’s National Broadband Strategy. 

Brockville 

Opportunities 

Creativity 

Diversity 


Tool Box 

Vision 20/20 strategic plan 

Comprehensive municipal marketing campaign 

Partnership between the city’s economic development department 

and a local group of high-tech companies 

Federal, provincial and municipal government funding 

Political leadership and community participation 

Strategy 

Vision 20/20’s four strategic pillars will build upon the city’s technological competitive advantage to ensure a 

diversified and resilient economy for the city and its surrounding area. 

Future Directions 

Monitoring and “fine tuning” Vision 20/20 will ensure effective implementation and achievement of its goals. 

Next steps include examining the potential for increased service co-ordination at a regional scale to enhance 

the cost effectiveness of service provision. To complement these initiatives the city is also focusing on tourism 

and downtown revitalization. 


Institutional 

Manufacturing/Industrial 

VISION 20/20 

Retail/Commercial 

Tourism 

Economic Development Tel: (613) 342-8772 

City of Brockville www.brockville.com 



Cobourg 

Population (2001): 17,172 

Catalyst 


Cobourg has embarked upon a cultural heritage conservation program aimed 

at linking its historic downtown core to the waterfront. Key to the town’s strategy 

is the Victoria Square beautification and enhancement program. Built in 1860, 

the Victoria Hall municipal building and its surrounding square are the heart of 

the community and will serve as a gateway to key local features such as the 

Harbour, Victoria Park, the beach and the marina. 

Greening of the Public Space 

In the northeast corner, a Victorian rose garden has been planted, with an armillary sundial centerpiece and 

new seating areas. In the southeast corner, a White Garden has been created that includes a granite water 

fountain, brick walkway (engraved with the names of those who purchased them) and a surrounding garden 

wall. 

Downtown/Commercial Core Improvements 

As the surrounding businesses access Cobourg’s Façade/Interior 

Improvement Loan Program and the Downtown Heritage Tax Incentive 

Program, they are not only able to visually enhance the appearance of 

their properties but also conserve and restore the heritage features of their 

buildings. 

Cobourg 

Capacity Building 

Creativity 

Diversity 


Tool Box 

Community-improvement plan loan program 

Local fundraising (about $160,000 plus donations-in-kind) 

Downtown heritage tax incentive (grants or loans) program 

Community volunteers 

Strategy 

Community involvement and generous donations, combined with municipal financial tools to stimulate 

downtown building conservation, will ensure the success of this program. 

Municipal Financial 

Incentive Programs 

Sale of Engraved 

Bricks 


There will be an impressive gateway from the historic downtown district to the town’s revitalized waterfront. 

Victoria Square will also be an inviting “green” public place, reminiscent of Victorian days, where people 

gather and where cultural and creative special events can be held. The town and community will continue 

its work to expand their liveable spaces through other projects that include the harbour area, gateways and 

Heritage Victoria Park. 


Tree Planting 

Dedications 

Bench Dedication 

Plaques 

Donations and 

Volunteers 

Volunteer Support 

Community Development Division Tel: (905) 372-5481 

Town of Cobourg www.town.cobourg.on.ca 



Cornwall 

Population (2001): 46,640 

Catalyst 


In 1998, the Le Village Business Improvement Area, La Caisse 

Populaire de Cornwall, Le Patrimoine de le Nativité, the Cornwall 

Planning Department and community activist, Chuck Charlebois, 

met to discuss the long-standing social and economic deterioration 

of the Le Village district. From this meeting, a partnership 

emerged - the Groupe Renaissance Group (Renaissance) - a 

non-profit grassroots organization with a mandate to chart a 

bottom-up approach to revitalizing the east-end neighbourhood. 

Community Safety and Greenspace Improvements 

Improvements to enhance safety have made the neighborhood more visually attractive and people-oriented. 

Projects include shoreline restoration, park improvements (lighting, tree and flower planting, mural design) 

and the addition of waterfront bike paths. To enhance safety, Neighborhood Watch, Renaissance Partners 

Against Crime and police outreach programs are now in place. 

New and Refurbished Housing 

Residential neighborhood improvements have occurred through efforts 

such as the Grow Home Project, a municipal housing renovation loan 

program and housing improvements and repairs performed by the 

World Changers youth volunteer group. The proposed Finishing Mill 

Loft Project within the Cotton Mill Complex Redevelopment District is 

expected to further invigorate the neighbourhood. 

Physical Infrastructure Improvements and Redevelopment 

Portions of the waterfront industrial area are being restored 

through phased cleanup, restoration, heritage conservation and 

redevelopment. 

Cornwall 

Environmental Management 


Creativity 


Tool Box 

Business-improvement area 

Community-improvement plan loan program 

Partnerships (business, religious community, city, academia 

and other government levels) 


Local fundraising 

Comprehensive marketing strategies 

Strategy 

Renaissance began with a community-wide visioning exercise that became the “engine for social and 

economic development”. Community ideas and goals were developed, harnessed and then sustained 

through creative partnerships. 


Momentum continues as existing partnerships are built upon and new ones are made. Currently, Renaissance 

is one of six community groups or members working to develop a city-wide, municipal brownfields 

reintegration strategy. This will be important to the Le Village district with its many defunct waterfront 

industrial properties that need to be put back into productive use. 


Human 

Capital 

Leveraging 

Investment 

Community 

Support 

Community 

Leadership 

Department of Planning and Housing Services Tel: (613) 932-6252 

City of Cornwall www.city.cornwall.on.ca 



Elliot Lake 

Population (2001): 11,956 

Catalyst 


Elliot Lake lost thousands of jobs when the mines began closing in the 

1990’s. In its favour, the community had a surplus of vacant housing 

units and good municipal infrastructure. To capitalize on these assets, 

citizens, politicians and representatives from the mining companies 

worked together to make the necessary adjustments to the local 

economy. 

Population and Economic Stabilization 

Now home to over 4,000 retirees, over 200 retirees move into the municipality annually. This injects millions 

of dollars into the local economy through spending and helps to strengthen the local tax base. 

Refurbished, Affordable Housing Units 

Formerly owned by the mining companies, housing units were either donated to the municipality or purchased 

with provincial assistance. About 1,475 units were converted and refurbished by Elliot Lake Retirement 

Living, a non-profit organization. 

Improved Community Services 

A sixty-four bed long-term care facility has been built and a wider range 

of community and recreational needs have been added, including 

the Elliot Lake Civic Centre and the White Mountain Academy of the 

Arts. Public transportation has been upgraded, along with streetscape 

improvements that include curb cuts, improved lighting, ramps and 

benches in bus shelters. 

Elliot Lake 

Development Patterns 

Opportunities 

Creativity 


Tool Box 

Municipal marketing campaign 

Advisory committee on economic development (citizens, politicians, 

municipal officials and local industry) 

Federal and provincial government funding 

Social infrastructure development with a senior issues focus 

Partnerships with Elliot Lake Retirement Living 

Strategy 

1987 

Economic Development 

Committee 

Economic restructuring strategies 

1997 

Seniors Issues 

Officer 

Addressing senior citizens issues 


Building on its assets, Elliot Lake plans further economic diversification to attract new businesses and 

residents. Some initiatives include tourism, seasonal recreational services with a waterfront (cottage) 

development project, outdoor heritage centre, improved multi-use trails and redevelopment and expansion 

of its golf course. 


1991 

Elliot Lake 

Retirement Living 

Managing housing and 

retirement-living needs 

1999/2000 

Millennium 

Plan 

Community planning for retirement 

living, tourism and arts and culture 

Economic Development Office Tel: (705) 461-7240 

City of Elliot Lake www.cityofelliotlake.com 



Greater Sudbury 

Population (2001): 155,219 

Catalyst 


Greater Sudbury 

Greater Sudbury has recognized the importance of enhancing and sustaining a healthy 

environment for residents through the restoration and protection of land, air and 

water since the early 1970’s. At that time, a massive tree-planting campaign restored 

thousands of hectares that had been denuded of vegetation during the early days 

of nickel production. Today, environmental restoration has gone one step further. 

Community leaders now embrace the opportunities offered by environmental initiatives 

to strengthen and stimulate local economic development. 

Land Reclamation Program 

Since 1978 16,000 hectares of land have been revegetated with grass cover and eight million trees. The 

regreening effort has resulted in an offset of 150 kilotonnes total fixed carbon and 600 kilotonnes CO 2 . After 

three years, tree species survival rates average 70 percent. 

Climate Protection: Regional Strategic Energy Plan (1995) 

Under the plan, eighty-six energy efficient retrofit projects within regional facilities were identified. They 

represented an annual energy savings of $990,844 (a 30 percent reduction in the annual energy bill), 300 

local jobs and a 26 per cent reduction in CO 2 emissions. The city is currently pursuing phase two of the 

Strategic Energy Plan, looking at opportunities within the rest of its building stock, that will result in an 

additional $300,000 savings annually. 

EarthCare Sudbury (2000) 

A partnership involving Greater Sudbury, community agencies, organizations, 

businesses and local citizens, is responsible for creating the 2003 Local 

Action Plan (LAP) - “Becoming a Sustainable Community”. The EarthCare 

Sudbury LAP is an ambitious and visionary initiative, aimed at making the city 

cleaner, greener, healthier and more sustainable. The LAP contains dozens of 

initiatives that will improve the environment, stimulate the local economy and 

improve the well-being of the community. 

Environmental Management 


Resources 


Tool Box 

Local Action Plan (2003) 

Strategic Energy Plan (1995) 

Political leadership and strategic environmental priorities 

Municipal funding and in-kind community contributions 

Federation of Canadian Municipalities grant for Community Energy Plan 

Community-based strategic planning process 

Community partnerships, participation and support 

Strategy 

Building upon the knowledge gained through the implementation of the Strategic Energy Plan, EarthCare 

Sudbury’s Local Action Plan is intended to create a cleaner, more liveable community for people and 

businesses. 

Economic Strength Quality of Life Environmental Enhancement 


Through time, specialized knowledge is being accumulated that will allow the Greater Sudbury area to 

capitalize on opportunities in the environmental and renewable energy sectors. This new niche will help 

solidify local efforts to rebuild and remake the community’s economic base. In turn, the city will be well 

positioned to compete within the global marketplace. 


Co-ordinator, Earthcare Sudbury Initiatives Tel: (705) 671-2489 (x4690) 

City of Greater Sudbury www.city.greatersudbury.on.ca 



Catalyst 

Kitchener 

Population (2001): 190,399 


Every city has vacant or underused buildings. Kitchener’s Adaptive 

Re-Use Program (1994) was created to put some of its downtown 

manufacturing, commercial and retail buildings back into use. 

Beginning with an inventory of sixteen properties, the program’s 

underlying principle was to build on the city’s industrial heritage 

by conserving the existing building stock and encouraging the 

reuse of obsolete and underused buildings. Municipal financial 

incentives were used to stimulate private investment in the 

downtown area. 

Adaptive Re-Use of Downtown Buildings 

Eight properties in the program are redeveloped and four are at some development stage. Of eleven 

additional properties added to the program, three are completed and the rest are being redeveloped. Nine 

properties have been remediated to make the lands and buildings safe for reuse. This has resulted in heritage 

conservation and new housing units (308 under construction with 471 awaiting development approval). 

Bringing People and Businesses Downtown 

Jobs, new and refurbished retail and office space, residential units, entertainment and open space are being 

added to the downtown core. 

Improving Public Space 

The city’s streetscape is becoming more pedestrian-friendly, safer, cleaner, 

and visually attractive, generating an increase in public-transit use in the core. 

Street redesign has slowed automobile traffic, increased accessibility and 

made walking safer. 

Kitchener 

Resources 

Creativity 

Diversity 


Tool Box 

Heritage tax increment-based financial program 

Flexible official plan land-use policies (zoning) 

Flexible development standards 

Public infrastructure-improvement program 

Waiving planning and development fees and charges 

Strategy 

Changes were initiated to various policies, procedures and attitudes as a proactive response to the 

disincentives faced by owners/developers when considering reusing or redeveloping older retail, commercial 

and industrial buildings in and around the downtown core. 

Planning 

Staff 

Fostering 

Partnerships 


Kitchener’s municipal leaders did not wait for market conditions to restore an “exhausted downtown”. After 

years of significant changes, the city has turned the page and now continues to build on the successes of 

the Adaptive Re-Use Program. By adding new properties to the program and developing a complementary 

Downtown Strategic Plan, the city continues to reshape the evolution of its downtown core. 


Financial 

Incentives 

Stimulating Private 

Investment 

Municipal 

Regulation 

Encouraging 

Redevelopment 

Information and 

Marketing 

Ensuring 

Uptake 

Planning Division Tel: (519) 741-2426 

City of Kitchener www.city.kitchener.on.ca 



London 

Population (2001): 336,539 

Catalyst 


When London’s heritage community groups made the case for a 

new governance structure and a substantial municipal budget 

allocation to the heritage and museum sector, Council instructed city 

staff to identify and analyse the “critical problem”. This resulted in 

substantive research into the sector’s needs and how London could 

best capitalize on its cultural and economic opportunities. 

Increased Public Awareness 

Through collaborative events such as Doors Open London and Discover London’s Heritage, public 

awareness has not only been raised around the city’s heritage assets, but has resulted in some visitors 

bringing forth lost information as well as archival and collection objects. 

Increased Public and Private Investment 

Partnerships with organizations such as Tourism London, Ontario Heritage 

Foundation, Main Street London, The London Free Press, and London Life 

Insurance Company have enhanced the sector’s marketing ability, public presence, 

donations and sponsorships. 

Raising Dollars Through Funding Allocation 

For every $1 allocated by the city in 2001 and 2002, an additional $1.31 was spent 

on project completion. This means that municipal financial commitment to heritage 

and museum projects ($373,170) was successfully used to raise an additional 

$488,982 from the private sector. 

London 


Opportunities 

Diversity 


Tool Box 

Public/private marketing and communication campaigns and events 

City staff and Heritage and Museum Coordinating Committee cooperation 

Municipal and provincial heritage grants and financial-assistance programs 

Private/public partnerships and private sector sponsorship 

Strategy 

Asking the right questions, research and analysis and a significant heritage and museum base to build upon, 

were the main components of London’s comprehesive strategy for tapping into the North American tourism 

market. 

is needed to ensure 

market readiness? 


London’s improvements allow the heritage and museum sector to participate in North America’s highly 

competitive market for tourism and entertainment dollars. The Heritage and Museums Coordinating 

Committee and the city continue to improve the city’s heritage and museum resources and evaluate, 

measure and gauge the heritage and museum tourism market. New initiatives have been explored, such as 

“passport to heritage” program, and a new strategic marketing plan is being developed. 


WHAT... 

is needed for effective 

implementation and 

monitoring? 

are London’s heritage 

and museum assets? 

are the economic 

opportunities for 

London? 

Planning and Development Department, Planning Division Tel: (519) 661-4500 

City of London www.city.london.on.ca 



Ottawa 

Population (2001): 774,072 

Catalyst 


Ottawa 20/20 is a growth management strategy that includes attracting 

and accommodating new business investment. The availability of a skilled 

workforce is critical to its success. However, a rapidly shifting economy 

has created a mismatch between business needs and workforce skills/ 

knowledge. Many people, particularly knowledgeable immigrants, women 

and young people, are either unemployed or underemployed. Municipal 

leaders are addressing this by establishing programs to increase the 

linkages between related businesses, education, training, research and 

professional/occupational institutions. 

Partners for Jobs 

A multi-sector task force (1999) with a mandate to identify and develop additional partnerships and 

employment development opportunities. By 2001, the results included 60 newly created partnerships 

involving both private and public organizations, a savings of $6.5 million in tax dollars and 1,300 people who 

were trained and employed. 

The Ottawa Partnership 

Since 2000, public and private community leaders have joined to strategically 

address Ottawa’s “people infrastructure”. One result is TalentWorks (2001), 

a key municipal program delivering customized initiatives aimed at attracting, 

developing and retraining qualified workers across all economic sectors. 

TalentWorks 

TalentWorks is a community-based initiative building Ottawa’s talent pool by 

providing strategic support to targeted sectors. Launched in 2001, it is the 

city’s initial experiment in workforce infrastructure and is managed by the 

Ottawa Centre for Research and Innovation. 

Ottawa 


Creativity 

Diversity 


Tool Box 

Ottawa Growth Management Strategy (2003) 

Leadership, co-operation, and partnerships between governments, businesses 

and the community 


Community-wide collaboration in projects and plan development 

Comprehensive studies profiling Ottawa’s city-region workforce, workforce 

environment and workforce development strategy (Ottawa Works) 

Strategy 

Ottawa 20/20 represents a five-pronged approach to city building. Recommendations in the Human Services 

Plan are cross-linked to the Economic Strategy so that people are connected to opportunities and businesses 

to a skilled workforce. 

Official 

Plan 


For a productive and functional economy, the supply and demand side of the workforce must be linked. 

Ottawa’s municipal and community leaders have established the foundations that will nurture that linkage. 

The Ottawa 20/20 Talent Plan provides the strategic framework for supporting business and the labour force 

and identifies important programs to be developed. 


Arts And 

Heritage 

Plan 

Human 

Services 

Plan 

Economic 

Strategy 

Environmental 

Strategy 

Business Development Tel: (613) 580-2424 

City of Ottawa www.ottawa2020.com 

TalentWorks, Ottawa Centre for Research and Innovation Tel: (613) 592-8160 

City of Ottawa www.talentworks.ca 




Population (2001): 74,566 

Catalyst 


For a century Algoma Steel Inc. (ASI) was Sault Ste. Marie’s economic 

strength. However, restructuring and employment downsizing of ASI 

resulted in business loss and an out migration of people. This loss of labour 

and businesses weakened the city’s municipal tax base. By moving from 

a single-industry dependency to one that is diversified and less vulnerable 

to change, these trends can be reversed so that an “attractive, vibrant and 

diversified community” can be built. 

Economic Dependence to Self-Reliance 

Building on earlier economic strategies, Destiny Sault Ste. Marie (March 2003) is a ten-year multistakeholder-based 

economic diversification strategy. The goal is to manage “a specific set of targeted growth 

and diversification initiatives and projects that will create employment to support a growing population base”. 

Expected results include 8,000 jobs and $2 million additional municipal tax revenues. 

Community Support and Partnerships 

Partnership initiatives began in the late 1990’s to develop strategies and programs for retaining and attracting 

residents and businesses. By 2003, 31 projects were announced involving trade, youth internship, tourism, 

and innovation and technology connectivity. Expected results include 1,500 direct jobs and another 1,500 

jobs throughout the economy. 

Marketing and Land Use 

The city’s industrial market strategy (2000) focuses on select 

groupings of businesses and industries that represent the best 

opportunity for investment retention and attraction over the shortto-medium 

term (10 years or less). A $3.8 million industrial land 

development program is also underway to provide fully-serviced 

industrial land at reasonable costs. 



Opportunities 

Resources 


Tool Box 

Destiny Sault Ste. Marie (2003) strategic plan 


Community and all-sector participation and support 

Strategic land-use policy and regulatory (zoning) planning 

Municipal leadership for waterfront (brownfields) development 

Industrial land inventory 

Strategy 

Through Destiny Sault Ste. Marie, six growth engines will form the basis for grouping and evaluating projects 

and initiatives that capitalize on the city’s competitive advantages, along with opportunities for growth and 

diversification. 

Tourism 


Small Business 

Trade and Export 

Knowledge and Skills 

Health, Social and Public Sector 

Traditional and New Industry 

Sault Ste. Marie is reasserting itself as a “great place to live and work”. To date, there have been a number 

of economic successes. The GP Flakeboard mill generated about 100 jobs; three new call centres created 

2,000 jobs with total direct wages of approximately $40 million. The relatively new waterfront Charity casino 

employs some 500 people while the Anthony Domtar Mill created 60 new manufacturing jobs. The city will 

build on these efforts to ensure continued positive results. 


Planning Division Tel: (705) 759-5368 

City of Sault Ste. Marie www.city.sault-ste-marie.on.ca 



Temiskaming Shores 

Population (2001): 10,630 

Catalyst 


Temiskaming Shores 

The south Timiskaming area experienced severe economic setbacks with 

mine closures in the 1980’s. Global economic restructuring created further 

instability through local employment downscaling. Municipalities in the area 

responded by co-operating with one another in order to retain residents 

and foster greater economic diversity and tourism opportunities. Together 

they are creating a centre for health, professional, cultural and economic 

services in south Timiskaming that builds upon their existing strengths and 

assets. 

Downtown Waterfront Revitalization Project 

A public-private partnership was established to develop an energy-efficient retirement village in downtown 

Haileybury in order to revitalize the core area and link it to the waterfront. Phase 1 is expected to garner about 

$360,000 in new spending throughout the area and enhance the local property tax base. 

Community Resource Centre in New Liskeard 

A municipal-federal partnership facilitated the development of a resource centre to help area residents job 

search, change careers or upgrade their skills. 

Community Centre Upgrading in Haileybury 

Improvements will be made to the community centre with funding from the Canada-Ontario Infrastructure 

Program. Municipal funding will be used to improve access to sports, recreational and social activities. 

Municipal Restructuring 

To achieve better co-ordination, servicing efficiencies, economies of 

scale and a stronger voice in the area, Haileybury, Dymond and New 

Liskeard amalgamated and became the “Corporation of the City of 

Temiskaming Shores” on January 1, 2004. 


Opportunities 

Creativity 


Tool Box 

Public/private partnerships (municipalities, the Tri-Town Chamber of 

Commerce and private sector developers) 


Political leadership and cooperation amongst area municipalities 

Community-based strategic planning 

Strategy 

Cross-boundary municipal co-ordination and community involvement are key components for developing a 

strategy aimed at creating an economically dynamic region. 

Community 

Situation 

Involvement Audit 

Action Plan 

All sectors 

and interest 

groups 


Scope of 

the Plan 

Plan 

Preparation 

The goal for the south Timiskaming area is to establish a prosperous and stable environment through new 

investment opportunities and local economic diversification. New investments totaling $32 million include a 

new senior’s residence, a golf course and a 12 km boardwalk that will link areas along Lake Temiskaming. 

These are expected to attract new residents, increase municipal property tax revenues and generate 

renewed business and tourist interest in the area. 


Research, 

analysis, data 

collection 

Community 

vision and 

mission statement 

Game Plan 

Nature, scope, 

and timing of 

activities 

Periodic plan 

review 

Monitoring 

Planning and Protective Services Tel: (705) 647-4368 

City of Temiskaming Shores www.temiskamingshores.ca 



Thorold 

Population (2001): 18,048 

Catalyst 


After almost a century as one of the city’s key employers, the 

downtown Gallaher Paper Mill permanently closed in 1999. The 

closure meant 14 acres of downtown land was left unoccupied, 

unproductive and contaminated by industrial activity. Municipal 

council recognized that decisive action was necessary to put this 

strategically located property back into productive use. 

Downtown Investment 

The city initiated a partnership with Keefer Development Ltd. to redevelop the Gallaher Paper Mill lands. 

The project includes a 300,000 sq. ft. book store, new retail and office space, residential units, a conference 

facility, spa, heritage inn and additional green space. This project is expected to create employment, local/ 

regional recreation networks and increased municipal property tax revenues. 

Heritage Preservation 

Two heritage buildings at either end of the site will be restored. One 

building will function as a heritage inn and the other will house a mix of 

uses. 

Recognition 

In 2002 the city received the Canadian Urban Institute Brownie Award 

in the best Small/Medium Project brownfields category. 

Thorold 



Diversity 


Tool Box 

Community-improvement plan tax increment-based grant 

program 

Public/private partnership 


Municipal improvement of the surrounding lands 

Official plan, zoning bylaw and site plan amendments 

Strategy 

It was a risky proposition but when municipal council moved from the more traditional “zone it and they 

will come” planning model to assuming the role of a proactive agent of change, a foundation for economic 

revitalization began. 


It is expected that more than 300 jobs will be created and that there will be approximately $6 million annually 

in economic spin-offs. Redevelopment is also expected to breathe new life into the downtown area through 

increased residents, businesses, shoppers and tourists. 


Planning 

Tools 

Municipal 

Leadership 

Private 

Sector 

Involvement 

Planning Department Tel: (905) 227-6613 

City of Thorold www.thorold.com 




Population (2001): 438,515 

Catalyst 


Between 2001 and 2016 Waterloo Region’s population will grow to 

about 560,000 from 450,000. Over time, demand for low-cost/affordable 

housing has increased but has not been met by the marketplace. The 

region has amongst the lowest vacancy rates in Canada. An estimated 

10,000 people are on affordable-housing waiting lists. To address this 

crisis, Regional Council has created an investment climate through its 

Affordable Housing Strategy. 

Affordable Housing Strategy (May 2001) 

To encourage private/non-profit sector building, key components of the strategy include capital grants, 

equalized multi-residential tax treatment, regional development charge grants and use of regionally-owned 

lands. By mid-2003, over 260 new units were built or under construction and another 400 were in the detailed 

planning and final approval stages. The region’s goal is to have an additional 1,000 affordable units available 

by the end of 2005. 

Increased Regional Staff Experience 

Valuable knowledge, insight and experience have been gained by 

regional staff who work with housing proponents. Staff is now well 

equipped to work with prospective developers on issues related to 

locating and purchasing land, financing arrangements, development 

control requirements and partnership needs. 




Resources 


Tool Box 

Affordable Home Ownership Pilot Program 

Municipal housing facilities bylaw for capital grants 

New tax class providing 35 years of equalized tax treatment (tax 

ratio of 1.0000) for new multi-residential development 

Financial grants to offset regional development charges and use 

of regionally-owned land 

Rent supplement funding for lowest income households 

Federal and provincial funding for affordable housing 

Strategy 

The Affordable Housing Strategy is a short and medium-term approach to the region’s affordable housing 

problems. Its success is rooted in a multi-pronged incentive approach that will encourage the building of 

affordable housing units. 

Using 

Public Lands 


Even if 1,000 units are added to the housing stock, the current and growing needs for affordable housing will 

not be entirely met. Consequently, the region has undertaken a longer-term strategy called the “Waterloo 

Region in the 21st Century...A Community Action Plan for Housing”. This Action Plan includes the results of 

a comprehensive housing survey and the identification of priority actions, key stakeholders and time frames 

required to address the region’s diverse housing needs and demands. 


Rent Supplement 

Funding Incentives 

Funding 

Data Base 

Financial-Assistance 

Programs 

Affordable Housing Strategy 

Multi-Residential 

Projects 

Planning, Housing and Community Services, Housing Division Director Tel: (519) 575-4521 

Region of Waterloo www.region.waterloo.on.ca 



Toronto 

Population (2001): 

50,000 (neighbourhood); 

2,481,494 (City of Toronto) 

Catalyst 


West Toronto Junction 

After World War II the West Toronto Junction (the Junction) neighbourhood 

went into decline as its industrial base faded away. To rejuvenate business 

activity in the area, the City of Toronto designated the Junction as an economic 

revitalization zone in the mid-1990’s. The potential for new investment in the 

neighbourhood galvanized community and business organizations to come 

together and, in 1998, formed what was to become a community development 

corporation - the West Toronto Junction Team (the Team). 

New Business Development 

Through the Team’s marketing and outreach efforts, over 45 new businesses opened in the area between 

2001 and 2002 (new restaurants, retail stores, beauty salons, small businesses, etc.), creating approximately 

80 jobs. 

Streetscape and Building Improvements 

The Junction’s visual appearance has been improved through the installation of historical street lamps, 

trees and refurbished sidewalks. Ongoing work is taking place to put overhead wires underground and 

approximately $1.5 million of mostly private sector dollars has been spent on interior and exterior building 

improvements. 

SMART Main Street Project 

To position the Junction for technological growth, feasibility studies relating 

to building connectivity and accessibility are being done. Twelve buildings 

owners are participating to test whether the conversion of identified real 

estate can encourage new media (employment) clusters to locate in the 

area. 



Resources 


Tool Box 

Community-improvement plan façade-improvement loan program 

Municipal designation as an “Economic Revitalization Zone” 

Municipal and federal economic development grants 

Community development corporation 

Partnerships between government, business and community 

volunteers 

Community office to centralize and focus the Team’s work 

Strategy 

With a solid foundation based upon policies, partnerships and funding, the Team has succeeded in laying the 

basis for an economically healthy neighbourhood that is attracting people and investments to the area. 


The Team has moved beyond retail promotion and become an active agent in transforming the neighbourhood 

and stimulating economic development in the area. Building on recent accomplishments, the next goals 

include the creation of training and resource centres for employees and employers, opening new retail and 

business markets, increasing residential density along the main street and capital investment in arts and 

culture. 


THE TEAM 

West Toronto Junction Tel: (416) 767-6680 

City of Toronto www.westtorontojunction.com 



Contact your local Ministry of Municipal Affairs and Housing Municipal Services Offices or local Rural 

Development Division at: 

Municipal Services Offices: 

CENTRAL 

777 Bay Street, 2nd Floor, Toronto M5G 2E5 

General Inquiry: (416) 585-6226 

Toll Free: 1-800-668-0230 Fax: (416) 585-6882 

SOUTHWEST 

659 Exeter Road, 2nd Floor, London N6E 1L3 


Toll Free: 1-800-265-4736 Fax: (519) 873-4018 

EAST 

8 Estate Lane, Rockwood House, Kingston K7M 9A8 


Toll Free: 1-800-267-9438 Fax: (613) 548-6822 

NORTHEAST 

159 Cedar Street, Suite 401, Sudbury P3E 6A5 


Toll Free: 1-800-461-1193 (705 area code only) 

Fax: (705) 564-6863 

NORTHWEST 

435 James Street South, Suite 223, Thunder Bay P7E 6S7 


Toll Free: 1-800-465-5027 Fax: (807) 475-1196 



Rural Development Division 

Regional Economic Development Teams: 

West Region 

GUELPH 

1 Stone Road West, 4th Floor 

Guelph N1G 4Y2 

519 826-3137 

Fax: (519) 826-4336 

BLENHEIM 

245 Marlborough Street North 

Blenheim N0P 1A0 

(519) 676-9850 

Fax: (519) 676-9732 

OWEN SOUND 

173 8th Street East 

Owen Sound N4K 1K9 

(519) 371-4717 

Fax: (519) 371-1373 

WOODSTOCK 

Unit B, 401 Lakeview Drive 

Woodstock N4T 1W2 

(519) 537-2656 

Fax: (519) 539-5351 

East Region 

If you are involved in the local economic development 

process in rural communities, you may want to access the 

Ministry of Municipal Affairs and Housing REDDI Web site at 

www.reddi.gov.on.ca. Whether you are a community leader, 

an economic development professional or citizen volunteer, 

the site will help you identify local priorities and carry out 

strategies to achieve your community’s goals. 

BELLEVILLE 

284B Wallbridge Loyalist Road 

P.O. Box 610, Belleville K8N 5B3 

(613) 962-2655 

Fax: (613) 961-7998 

CASSELMAN 

958-B Route 500 West 

R.R. 3, Casselman K0A 1M0 

(613) 764-0495 

Fax: (613) 764-0347 

LINDSAY 

c/o Ministry of Agriculture and Food 

322 Kent St. West, Lindsay K9V 4T7 

(705) 324-5715 

Fax: (705) 324-1638 

SMITHS FALLS 

91 Cornelia Street West 

Smiths Falls K7A 5L3 

(613) 283-7002 ext. 112 

Fax: 613-283-7005 



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Qualité de la vie Municipale pour la Prospérité Économique 

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Economic Development & Tourism Research Paper - County of Elgin

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