& Special Flood Plain Policy Update

SECONDARY PLAN & 

FLOOD PLAIN POLICY 

UPDATE 

DUNNVILLE 

Secondary Plan 

& Special Flood 

Plain Policy 

Update 

ISSUES AND OPTIONS 

REPORT 

January 2012 

DTAH

TABLE OF CONTENTS 

1.0 Introduction .................................................................................................................................................................. 1 

1.1 Study Purpose ............................................................................................................................................................ 1 

1.2 Study Area Description .............................................................................................................................................. 1 

1.3 Study Process/Timeline ............................................................................................................................................. 2 

2.0 Flood Plain Analysis .................................................................................................................................................... 5 

2.1 Existing Flood Plain Policy and Secondary Plan ....................................................................................................... 5 

2.2 Existing Flood Plain Description and Hydraulic Modelling ........................................................................................ 9 

3.0 Public Consultation ................................................................................................................................................... 10 

3.1 Public Open House #1 – September 14, 2011 ........................................................................................................ 11 

3.2 Public Open House #2 / Design Workshop – November 8, 2011 ............................................................................ 12 

4.0 Issues and Options .................................................................................................................................................... 14 

4.1 Special Flood Plain Policy Area Boundaries ............................................................................................................ 14 

4.2 Repositioning County-Owned Waterfront Lands ...................................................................................................... 15 

a) Expansion of Historic Commercial Core .................................................................................................................. 22 

b) Waterfront Access .................................................................................................................................................... 22 

4.2.1 County-Owned Waterfront Land Options ......................................................................................................... 23 

4.2.2 Land Use and Urban Design Options .............................................................................................................. 34 

4.3 Main Street Corridor ................................................................................................................................................. 39 


4.4 Broad Street/Taylor Road Retail Node..................................................................................................................... 42 


4.5 Broad Street Transition Area .................................................................................................................................... 47 


5.0 Recommendations & Next Steps .............................................................................................................................. 51 

DUNNVILLE SECONDARY PLAN AND SPECIAL FLOOD PLAIN POLICY UPDATE: ISSUES AND OPTIONS REPORT | i

FIGURES 

Figure 1.1 Study Area ............................................................................................................................................. 4 

Figure 2.1a: Existing Special Policy Areas and Regulatory Flood Plain ................................................................... 7 

Figure 2.1b: Existing Special Policy Areas and Regulatory Flood Plain (County-Owned Lands) ............................. 8 

Figure 4.2.1: Option 1 – High Level of Redevelopment ......................................................................................... 18 

Figure 4.2.2: Option 2 – Intermediate Level of Redevelopment ............................................................................. 19 

Figure 4.2.3: Option 3 – Minimal Level of Redevelopment .................................................................................... 20 

Figure 4.2.4: Option 4 – Open Space/Park Redevelopment .................................................................................. 21 

County-Owned Lands: Components...................................................................................................................... 24 

Option 1.A – High Level of Redevelopment ........................................................................................................... 28 

Option 2.A – Medium Level of Redevelopment ..................................................................................................... 29 

Option 2.B – Medium Level of Redevelopment ..................................................................................................... 30 

Option 3.A – Low Level of Redevelopment ............................................................................................................ 31 

Option 3.B – Low Level of Redevelopment ............................................................................................................ 32 

Option 3.C – Low Level of Redevelopment ........................................................................................................... 33 

Figure 4.3 – Broad Street/Taylor Road Retail Node .............................................................................................. 43 

Figure 4.4 – Broad Street Transition Area ............................................................................................................. 48 

ii | JANUARY 2012 | MMM GROUP & DTAH

1.0 INTRODUCTION 

1.1 Study Purpose 

Haldimand County has initiated the preparation of a Secondary Plan and Special Flood Plain Policy Update for the community 

of Dunnville. This study presents an exciting opportunity for residents and members of the community to identify a solid 

framework to plan for the growth and evolution of Dunnville. 

The Dunnville Secondary Plan will establish a more detailed policy framework for the Dunnville Secondary Plan area, identify 

community-specific issues, and provide policy guidance for resolving these issues. The Flood Plain Policy Update includes 

the development of recommendations on whether to proceed with an update to the Haldimand County Official Plan Special 

Flood Plain Policy Area policies. 

The Issues and Options Report identifies the planning and urban design issues and potential options to be addressed in the 

Secondary Plan and Special Flood Plain Policy Update, including potential redevelopment options for the County-owned 

waterfront lands. Furthermore, the Report provides a basis for which new policies will be established to guide Dunnville in 

achieving its goals. 

1.2 Study Area Description 

The Study Area comprises Dunnville’s historic commercial core, the Grand River waterfront and extends east through the 

residential area towards the large format retail area at Taylor Road and Broad Street East. Figure 1.1 outlines the Study 

Area, which has been divided into two key areas: 

1. Secondary Plan Area; and 

2. Flood Plain Policy Areas. 

The Secondary Plan area is generally bounded by Cedar Street in the west, the former CNR Line in the north, slightly east of 

Taylor Road in the east, and Main Street East/North Shore Drive and the Grand River/Front Street in the south. 

The County Official Plan divides the flood plain area into 3 distinct policy areas, each containing varying policy regulations to 

protect from flood hazards. 

DUNNVILLE SECONDARY PLAN AND SPECIAL FLOOD PLAIN POLICY UPDATE: ISSUES AND OPTIONS REPORT | 1

They include: 

1. Area 1: Grand River in the south, west of George Street/Helena Street in the west, south of the former CNR Line, 

Cedar Street in the east. 

2. Area 2: Grand River in the south, south of Taylor Road in the west, Main Street East/North Shore Drive in the north, 

and Main Street East and east of Hydro Street. 

3. Area 3: Cedar Street in the West, South Cayuga Street/Alder Street East in the north, Tamarac Street in the west, 

and Main Street East in the south. 

1.3 Study Process/Timeline 

The Study is being conducted in 3 Phases: 

 

 

 

Phase 1: Background Review 

Phase 2: Issues and Options 

Phase 3: Prepare Secondary Plan and Special Flood Plain Analysis Policy Update 

The following sections briefly summarize the goals and anticipated timing for each of the project phases: 

Phase 1: Background Review 

Phase 1 of the Dunnville Secondary Plan and Special Flood Plain Policy Update involves a thorough background review of 

existing reports, documents and resource materials that relate to the community, the planning policy framework, urban design 

and flood plain analysis. An overview of these initiatives and how they relate to the Study and the Secondary Plan and 

Special Flood Plain policies are summarized in the Background Report. 

A Public Open House was held on September 14, 2011, to introduce the Study, provide an overview of the background work, 

and present preliminary issues and options for Dunnville. The Open House provided attendees with an opportunity to provide 

input, identify issues and ask questions of the Study. 

Anticipated Timeframe: June – September 2011 

Phase 2: Issues and Options 

Phase 2 of the Study involves the identification/confirmation of issues, opportunities, constraints and options based on 

feedback received from the Public Open House, and the Background Report, including the Flood Plain Analysis. An important 

2 | JANUARY 2012 | MMM GROUP & DTAH

component of this Phase is the Issues and Options Report and Public Open House/Design Workshop, to gain essential 

feedback on the issues facing the community of Dunnville and options regarding future development of the downtown and 

waterfront area, and particularly the County-owned lands. 

Based on the feedback received and background work completed, alternative land use and urban design options have been 

identified for the repositioning of the County-owned lands adjacent to the Grand River, the Broad Street Corridor and the 

emerging Broad Street/Taylor Road Retail Node. These concepts are presented as part of this Issues and Options Report, 

and anticipated for endorsement by Council in February 2012. 

Anticipated Timeframe: September 2011 – February 2012 

Phase 3: Prepare Secondary Plan and Special Flood Plain Policy Update 

Phase 3 of the Study involves the preparation of the Secondary Plan and Special Flood Plain Policy Update. Based on 

previous analysis and public feedback, more detailed land use policies and urban design guidelines will be prepared, and a 

recommendation will be made as to whether the County should proceed with an update to the Special Flood Plain Policies in 

the Official Plan or consider alternative flood plain policies for the Study Area. A third Public Open House and a final public 

meeting will be held by the County Council in Committee, to obtain feedback on the County-owned waterfront land options, 

Draft Secondary Plan, Urban Design Guidelines, and Special Flood Plain Policy Update recommendations. The Final Drafts 

will be presented to Council for adoption/endorsement in May/June 2012. 

Anticipated Timeframe: February 2012 - June 2012 


Figure 1.1 Study Area 


2.0 FLOOD PLAIN ANALYSIS 

2.1 Existing Flood Plain Policy and Secondary Plan 

Riverine hazard lands exist within the Dunnville Secondary Plan area. Flooding originates from the Grand River under 

extreme flow events, this flooding potential is recognized in various past flood plain mapping studies and within the existing 

Special Policy Area (SPA) that addresses a portion of lands within the Secondary Plan area and along the waterfront. 

Existing SPA delineation in relationship to the Secondary Plan area is indicated in Figure 2.1. Also indicated in the Figure is 

the extent of predicted flooding as outlined on existing Grand River Conservation Authority (GRCA) flood plain mapping for a 

Regulatory event (additional details outlined in Section 2.2). 

The SPA applicable to Dunnville and currently adopted within County planning documents is contained in Section 2.C.1.11 of 

the Official Plan and shown in Figure 2.1. In summary, the three zones within the existing SPA (labeled as Area 1, 2 & 3) 

ensure protection of new buildings, structures and major additions by requiring flood-proofing to the following levels: 

Area 1: to the level of the Regulatory Flood - to an elevation of 179.0 m 

Area 2: to the level of the Regulatory Flood - to an elevation of 176.5 m 

Area 3: to the level of the 100 Year Flood - to an elevation of 178.7 m 

As indicated, the existing SPA does not extend to all Regulatory flood inundated portions of the Secondary Plan area. Most 

notably lands located east of SPA Area 3 and north of SPA Area 2 are not included in an SPA. Additionally, it is clear that 

where Areas 1, 2 and 3 of the SPA converge, determining the correct protection level to use will require further analysis 

(discussed further in Section 4.1.) 

The Provincial Policy Statement requires that significant development be excluded from areas prone to flood inundation 

unless those areas are addressed within an approved SPA (or a Two-Zone Flood Plain Policy). Areas that lie outside of an 

SPA (or Two-Zone Flood Plain Policy) are generally subject to a One-Zone policy approach whereby all new development is 

restricted from areas subject to flood inundation. 

Given the opportunity to address a larger and contiguous area of historical flood plain development, such as lands located 

within the Dunnville Secondary Plan area, consideration is usually given to applying a common policy across the lands – i.e., 

a Special Policy Area. An SPA sets common rules for development that have been agreed to by the flood plain regulator (i.e. 

GRCA), the County and the Province. The Province is party to the agreements, and is ultimately the approval authority 

through an Official Plan Amendment. It is based upon recognition of a given additional level of flood risk, with this determined 


through a hydraulic study of various potential development configurations combined with the existing area’s overall 

characteristics. 


Figure 2.1a: Existing Special Policy Areas and Regulatory Flood Plain 


Figure 2.1b: Existing Special Policy Areas and Regulatory Flood Plain (County-Owned Lands) 


2.2 Existing Flood Plain Description and Hydraulic Modelling 

The Regulatory event defining flood susceptible areas in Dunnville is the Hurricane Hazel event, which has also been adopted 

across other applicable areas of Ontario as a probable ‘worst-case’ flood event. This Regulatory event approximately equates 

to the predicted flows in the river associated with the 1954 Hurricane Hazel storm – if that storm were to occur over the entire 

upstream Grand River watershed. For Dunnville, the appropriate flow in the river resulting from such a storm has already been 

accurately determined by GRCA through past study, and further analysis of that value is not deemed necessary at this time. 

In summary, the flow value resulting from the extreme rainfall event runoff is quite well known. 

A hydraulic model is a computer program that takes the known flow value in the river and predicts how high the resulting 

flooding will be. In other words, the rainfall runoff from a Hurricane Hazel storm event causes a certain flow amount in the 

river. The hydraulic model takes this flow amount and mathematically determines how high the flooding will be, based on the 

surrounding landscape and other river characteristics. The exact way the river and surrounding landscape are input to the 

hydraulic model can differ on the type of model used, but all models will use the same flow value. Areas on the map that are 

predicted to be flooded because of their location and elevation are termed flood plain. 

It should be noted that in addition to the potential for high flows from upstream, the Grand River near Dunnville can also be 

significantly affected by temporary level increases in downstream Lake Erie (seiche events) and also by ice. These two items 

add another layer of complexity to the overall consideration of flooding potential in Dunnville. For example, the flooding event 

that took place in February 2009 is said to have been caused by a combination of many factors, including ice jamming 

problems, a seiche event on Lake Erie, and high flows in the Grand River resulting from both snow melt and rainfall events. 

Although the 2009 event had less flooding than the Regulatory event, it has potential to occur on a more frequent basis. 

The Grand River and associated flood plain in the vicinity of Dunnville is recognized by the GRCA and others as having many 

challenging characteristics to consider when developing an accurate hydraulic. The number of in-river weirs affecting flows as 

well as the large number of flood prone buildings and streets within the community result in many different potential patterns 

and directions of flow for floodwaters. Hydraulic modelling of places like Dunnville is quite complex, driven by the challenges 

of modelling the many uneven landforms typical of a downtown. At the same time, determining the level of flood risk in highly 

populated areas warrants an extra level of detail. 

A Two-Dimensional (2-D) modelling approach can be effective in addressing some types of flood plain complexity. Basically, 

a 2-D model does a better job of predicting flooding depths and velocities in situations where floodwaters significantly proceed 

in directions that are different from the flow in the main channel of the river. 2-D models have been around for some time, but 

only recently has computing power grown to allow their more widespread use. 


A 2-D model is able to compute flow movements in two directions, with tens of thousands (or more) individual grid points 

solved simultaneously for flow velocity, flow direction and flooding depth. Grid sizes can vary, with the Dunnville study area 

broken into 5 m by 5 m sized grids for the analysis and results outlined in this report. The extent of flood plain indicated in 

Figure 2.1 has been produced using a 2-D modelling approach, with these results matching quite closely with previously 

determined GRCA flood plain definitions. 

One of the main advantages of the hydraulic modelling approach taken in this report is the relatively straightforward way that 

‘what-if’ options for development can be modelled to predict their flood proofing requirements and their resulting impacts upon 

the flood plain. Section 4.2 contains discussion of preliminary hydraulic modelling results and considerations for various 

‘what-if’ planning and development scenarios explored in this study for the County-owned waterfront lands. 


3.0 PUBLIC CONSULTATION 

The final product of this Study will be a Secondary Plan for the 

community of Dunnville, and a set of recommendations on how to 

proceed with an update to the Flood Plain policies for Dunnville. 

The Secondary Plan will be a document written for the 

community, and developed by the community. Consultation with 

residents, business owners and interested groups and 

stakeholders is a critical component to the success of this project. 

3.1 Public Open House #1 – September 14, 2011 

The first public open house was held on September 14, 2011 to 

introduce the Dunnville Secondary Plan and Flood Plain Policy Update to the community and interested stakeholders, as well 

as provide an overview of the background work and identification of preliminary issues and options, undertaken as part of 

Phase 1 of the Study. Approximately 30-40 individuals attended the public open house, to review display boards and ask 

questions to the study team on their thoughts, concerns and visions for Dunnville. 

Many questions and issues were raised at this open house, which helped to establish a preliminary view of some of the critical 

issues and opportunities facing Dunnville. Some of the key topics that were discussed include: 

 

 

 

 

Farmer’s Market: The Dunnville Farmer’s Market is a community focal point, and should be enhanced or expanded 

to accommodate a larger number of stalls, and potentially include an indoor component to accommodate uses in cold 

and inclement weather, and potentially boutique shops, restaurants and cafes. The Farmer’s Market should be 

maintained generally in the core waterfront area. 

County-Owned Lands: The County should ensure that the former Dunnville Arena lands remain in public ownership, 

and that the property be used in a way that benefits the community. 

Main Street Parking Lot: The municipal parking lot on Main Street divides Downtown Dunnville and the waterfront 

area. The buildings flanking the parking lot “turn their backs” to Main Street and the waterfront and do not facilitate a 

relationship between the downtown core and the waterfront. Further concerns were expressed regarding the 

aesthetics and streetscape along Main Street, which may be improved. 

Flooding: Flooding hazards are a key concern to the community, as many homes and businesses in Downtown 

Dunnville were affected by the February 2009 flood event. Opportunities should be explored to mitigate potential 

flood risks while still accommodating appropriate development. 


These issues, among many others, will be considered in developing a policy framework for Dunnville. More importantly, the 

topics will help frame the critical issues and options identified for Dunnville, and will play an important role in shaping the 

recommendations that will form the Dunnville Secondary Plan and Special Flood Plain Policy Update. 

3.2 Public Open House #2 / Design Workshop – November 8, 2011 

The second public open house and design workshop was held on 

November 8, 2011 to present the issues identified in the first 

phase of the study and seek public input on land use and urban 

design options, particularly as they relate to the repositioning of 

the County-owned lands. Approximately 80-90 individuals 

attended the second public open house and participated in the 

design workshop. 

Working groups of roughly 8-10 people were tasked with 

identifying redevelopment options for the County-owned lands, 

which were categorized within four preliminary redevelopment 

scenarios, which reflected varying degrees of development: 

 

 

 

 

Option 1 – Redevelop All Available Land 

Option 2 – Intermediate Level of Redevelopment 

Option 3 – Minimal Level of Redevelopment 

Option 4 – Open Space/Park Redevelopment 

A variety of ideas were put forward, with all groups working within the spirit of the workshop exercise. In general, participants 

understood the important role of the County owned lands and the waterfront to Dunnville, and the potential to improve the 

downtown, provide a higher level of public amenity, and create a stronger relationship to the Grand River. 

A key concern was to retain the Farmers Market in the downtown, in a new improved shelter with a possible strategic 

relocation to serve multiple planning and design objectives. Several ideas were put forward to expand the Market and include 

year round operations in a single use weather protected structure or as part of a civic minded mixed-use project. 

Another concern was the viability of the boat club and marina, with several recommendations to combine these waterfront 

operations with a restaurant in a new building. Boat launch parking should also be accommodated on the site. Views to and 

from the river were stated as a valuable amenity to capitalize on, and highlight the community’s waterfront. 


Participants expressed interest in retaining the County owned lands as a public waterfront park, with features such as 

programming, a playground, washrooms, amphitheatre/bandshell/gazebo. Public access to the river was also another shared 

idea, perhaps with a riverfront trail from the bridge to the marina. 

Support for the local business community was also discussed. Parking for downtown businesses, the Farmers Market and the 

Marina was a common element to all of the groups. Incentives were suggested to improve the rear facades of the properties 

that border the Main Street municipal parking lot. Improvements could include tree planting, painting, or screening with 

another architectural feature like an arbor or the Farmers Market. 

Participants expressed that new infill development should be limited overall. The groups agreed that if it is part of the land use 

option, buildings should respect the existing character and scale of the downtown and positively contribute to the image of 

Dunnville. Buildings should relate strongly to Main Street and allow—not block--views to the river. 

More green space was encouraged overall, including new street trees, gardens, and parks. 

In all, participants agreed that a balanced plan is most appropriate, and that it should not be all comprised of one thing. 

Participants strongly recommended that the County not sell off the entire public asset and that they only have one chance to 

get the redevelopment of lands right and that the project should provide an overall benefit to the community of Dunnville. 


4.0 ISSUES AND OPTIONS 

Based on the background review, discussions with County staff, and comments from the public, the following section identifies 

the key issues to be addressed through the Secondary Plan and Special Flood Plain Policy Update Study and potential land 

use and urban design options. 

4.1 Special Flood Plain Policy Area Boundaries 

Since the existing Special Policy Area (SPA) does not extend to all flood prone lands within the Secondary Plan area, the SPA 

is recommended to be expanded to encompass these areas as required. 

The existing SPA also currently requires different flood protection levels for each of its three existing zones (Areas 1, 2 & 3 as 

indicated in Figure 2.1). Where these areas abut one another, the current policy requires adherence to different flood levels 

for areas that are literally right beside each other. The distinction of one area versus another in this case is hard not to be 

seen as arbitrary in some way, and needs to be addressed within a revised and expanded SPA. 

The complexity of the flood plain in the Dunnville area warrants consideration of further developing a 2-D model (appropriately 

linked to a 1-D river model as is necessary) to inform the SPA. A 2-D model will allow much greater detail or granularity in 

determining appropriate flood protection levels, thereby allowing the policy to better address transitions in levels for various 

areas of the revised SPA. A 2-D model will have better ability to pinpoint areas of high floodwater velocity and depth that 

should be addressed within the SPA. As well, the modelling of various anticipated ‘what-if’ development scenarios can be 

better facilitated through use of a 2-D model, allowing more informed policies within the revised SPA. 

The update to the Special Policy Area should also ensure that Lake Erie levels and the effects of river and lake ice are 

appropriately integrated into the analysis of flooding risks. 


4.2 Repositioning County-Owned Waterfront Lands 

The County-owned waterfront lands consisting of the former Dunnville Memorial Arena and Recreation Centre, outdoor 

farmers market, Garfield Disher Park, and associated parking areas (including the parking lot on the north side of Main Street) 

and vacant lands provide an opportunity for revitalization and redevelopment of Dunnville’s waterfront. Following the 

completion of the new Dunnville Arena and Community Centre in the east end of the community, the old arena complex on 

Main Street has since been demolished. 

The Haldimand County Streetscape Plan and Urban Design Guidelines (Streetscape Plan) identifies the creation of a 

riverfront park place on Main Street that faces and integrates with the urban form of the downtown, which includes the Countyowned 

lands and privately owned lands to the east. 

A major impetus of the Study is to identify strategies and establish a policy framework for the repositioning of these Countyowned 

lands, including potential strategies for the redevelopment and future use of these lands. Alternative land use options 

were explored through consultation with the community and a design charrette/workshop at the second Public Meeting held 

on November 8, 2011. 

Issues and options related to the repositioning of the County-owned waterfront lands may include: 

expansion/improvement of existing assets, including the boating/docking facilities, Garfield Disher Park and farmers 

market; 

the development of new community uses or facilities; 

extension of public open spaces, pedestrian connections and trails; 

the development of new commercial/retail or mixed residential uses should the County consider disposing of certain 

lands; 

reconfiguration/improvements to the internal road network and streetscape (Bridge Street, Hydro Street, Market 

Street); 

future development opportunity in light of the constraints associated with the flood plain hazards; and 

ensure compatibility of land uses given the critical flood hydraulics impacting these lands. 

Hydraulic 2-D modelling has been modified in anticipation of the types of development that might be considered at this 

location. Specifically, modifications made to the modelling allow a general determination of changes in velocities and flooding 

levels associated with the various ‘what-if’ scenarios outlined for the County-Owned waterfront lands to help inform the 

planning directions and land use options. 


Preliminary examination of the modelling suggests that the County-owned lands are located in a somewhat sensitive hydraulic 

juncture along the river, although not in as critical a location as was once thought prior to completion of the modelling. It 

should be noted that some preliminary review of the results of the 2-D modelling has been completed in consultation with 

GRCA, but only enough to indicate a general understanding and concurrence with original modelling results. Considerable 

additional review and study will be required for these lands prior to determining a final arrangement that is most appropriate 

from a flood plain standpoint. 

Preliminary concept and analysis of hydraulic considerations 

Four preliminary development scenarios were prepared to test their potential impact on flooding and velocities during the 

control storm event as presented at the second Public Open House/Design Workshop. The scenarios ranged from a relatively 

high level of development to primarily open space/park areas. The form and character of development is not defined and 

could accommodate new buildings for a range of potential land uses and built form intensity. 

The preliminary development scenarios and their potential impact on flooding and velocities are presented in the following 

Figures, and include the following options. 

 

 

 

 

Option 1 – High Level of Redevelopment. This option considered what would happen if all three potential development 

parcels were raised above the high water mark. The existing public rights-of-way remained in their current 

configuration (Figure 4.2.1). 

Option 2 – Intermediate Level of Redevelopment. This option was Similar to option 1 but with smaller development 

footprints to allow for greater flow through the sites (Figure 4.2.2). 

Option 3 – Minimal Level of Redevelopment. Only portions of the arena site are redeveloped, including the western 

portion which is currently above the flood level. The northern parking lot remains with the former arena site becoming 

an open space that allows flood waters to flow through towards the river (Figure 4.2.3). 

Option 4 – Open Space/Park Redevelopment. The Main Street parking lot remains in its current configuration, with the 

entirety of the former arena lands developed/retained as public open space (Figure 4.2.4). 

The hydraulic analysis of the four options indicates a range of potential impacts. The potential areas of development on the 

options are illustrated by the hatching. As one would expect, a higher level of development and built form coverage would 

have a greater influence on the flood plain and would likely require greater mitigation. Conversely, the options with more open 

space and fewer obstacles will allow more predictable flows and require less mitigation. 

The arrows on the Figures represent the direction and velocity of flows. Areas where the flow is both deep and fast are 

intuitively more significant to identify than just slow moving areas or just shallow and fast moving areas. A larger arrow 

represents a higher flow velocity. Fast flowing water is most significant where it is also deep. The product of depth and 


velocity (i.e. the calculation of depth times velocity) in any given location will be important in determining the potential risk at 

that location. However, areas of significant depth, even if relatively slow moving, will also be important to identify in 

determining overall risk. 


Figure 4.2.1: Option 1 – High Level of Redevelopment 


Figure 4.2.2: Option 2 – Intermediate Level of Redevelopment 


Figure 4.2.3: Option 3 – Minimal Level of Redevelopment 


Figure 4.2.4: Option 4 – Open Space/Park Redevelopment 


Issues which also relate to the repositioning of County-owned waterfront lands are further outlined below and include: 

a) opportunities to expand the historic commercial core area; 

b) improving access to the waterfront; and 

c) built form and urban design options for Main Street. 

a) Expansion of Historic Commercial Core 

The Official Plan identifies that the Dunnville Secondary Plan should assess and make recommendations regarding the 

expansion of the community’s historic commercial core to incorporate the Grand River Waterfront. The historic commercial 

core is delineated by the Community Commercial designation in the County Official Plan. The Community Commercial 

designation accommodates a broad range of retail, shopping functions, offices, professional and personal services, 

entertainment and other commercial activities. Additional uses include institutional and community facilities, and apartment 

units. 

The County-owned waterfront lands, consisting of the former Dunnville Memorial Arena Recreation Centre, outdoor farmers 

market, and Garfield Disher Park, are located within the Community Commercial designation and the repositioning of these 

lands to accommodate new/enhanced uses and their configuration are explored in this Report. These lands represent the 

most logical and impactful opportunity to address the policy objectives of the Official Plan to expand the historic commercial 

core. 

Issues and options for the expansion of the historic commercial core may include: 

 

 

 

 

the potential impacts and transitions with neighbouring land uses (i.e., residential, employment uses); 

provide for visual and physical connections from the downtown to the waterfront (signage, walkways, landscaping, 

building facades); 

future development opportunity in light of the constraints associated with the flood plain hazards; and 

economic and market conditions to support additional community commercial development. 

b) Waterfront Access 

Improving the accessibility and connectivity of the downtown core and the waterfront is desirable to capitalize on the social, 

economic and recreational amenities associated with the waterfront. The Streetscape Plan identified improved pedestrian 

connections from Bridge Street to the waterfront and the extension of the pedestrian connection from the Chestnut Street 

alleyway, extending south of Main Street to the waterfront. 


Issues and options regarding waterfront access may include: 

improved/new pedestrian accesses/connections from the historic core to Main Street and the waterfront; 

improved connections from Main Street to the Garfield Disher Park through the repositioning of the County-owned 

waterfront lands and Bridge Street; 

new pedestrian facilities (trails/boardwalks) along the waterfront; and 

potential acquisition of additional strategic waterfront lands and/or public easements, if deemed appropriate, which 

may facilitate a more continuous waterfront trail or public space. 

4.2.1 County-Owned Waterfront Land Options 

Many opportunities exist to allow for the expansion of the commercial core, provide greater access to the waterfront, and 

revitalize and incorporate the Main Street Corridor with the community and its amenities. The following section presents 

various options for the repositioning of the County-owned waterfront lands, which have been informed through the issues and 

options identified in this Report and the input received from the second Public Open House/Design workshop. 

The options present alternative development concepts for the various components or sub-areas which comprise the Countyowned 

lands (i.e, the waterfront, north parking lot, west block, east block and southeast block), as identified on Figure 4.2.5. It 

is anticipated that the recommended option may consist of the preferred elements for each of the various sub-areas, as 

opposed to simply selecting one option. 

Table 4.1 summarizes the strengths and weaknesses associated with each of the options, which are illustrated in the following 

figures. 


Figure 4.2.5: County-Owned Lands: Components 

north parking lot 

east block 

west block 

southeast block 

waterfront 


Table 4.1 – County-Owned Waterfront Land Options 

1. High Level of Redevelopment 

Option 1.A North Parking Lot: New Farmers 

Market structure and improved 

streetscape with small public 

space at east end 

 

 

 

 

 

Component Strengths Weaknesses 

West Block: Townhouse infill 

fronting Main Street and larger 

park space extending to 

waterfront 

East Block: Improved parking lot 

Southeast Block: Low-rise 

apartment building (4 stories) and 

associated parking lot 

Waterfront: combined 

marina/restaurant and river walk 

promenade 

2. Medium Level of Redevelopment 

Option 2.A North Parking Lot: Improved 



West Block: Townhouse infill 

units, 3- to 4-storey maximum and 

small park space closer to 

waterfront 

East Block: New Farmers Market 

structure and improved parking lot 

Southeast Block: new park 

extending to Garfield Disher Park 


marina/restaurant and river walk 

promenade 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

Redevelopment to help fund public 

space improvements 

New downtown residents 

Improved security with ‘eyes on the 

street’ 

Expanded park space connects 

riverfront and Garfield Disher Park 

to downtown 

Improves entrance into downtown 

and streetscape character 

Improved built form edge along 

Main Street 

Improved Farmers Market 

Improves access along river’s edge 

Provides a commercial opportunity 

to help attract people to the 

waterfront 

Redevelopment to help fund public 

space improvements 

New downtown residents 

Improved security with ‘eyes on the 

street’ 



to downtown 



Strong built form edge along south 

side of Main Street 





waterfront 

 

 

 

 

 

 

 

 

 

Requires easement across private 

lands to complete river walk 

promenade 

Requires relocating marina parking and 

boat storage 

Townhouse and apartment 

development could influence water 

flows during flood event 

Reduced parking supply in Main Street 

parking lot 

Interrupts views towards the river from 

Main Street. 



promenade 


boat storage 

Townhouse infill and Farmers Market 

on south side of Main Street could 

influence water flows during flood event 

Interrupts views towards the river from 

Main Street. 


Option 2.B Similar to Option 2.B, with an 

expanded streetscape frontage 

along the North Parking Lot 


 

More opportunity to improve Main 

Street character and entrance to 

the downtown 

 

Loss of parking spaces on North 

Parking Lot 

3. Low Level of Redevelopment 

Option 3.A North Parking Lot: New Farmers 

Market structure and improved 



West Block: new park and 

amphitheatre extending from Main 

Street to the waterfront 

East Block: Improved parking lot 

Southeast Block: new park 

extending to Garfield Disher Park 


marina/restaurant and river 

walk promenade 

Option 3.B Similar to Option 3.A except that 

new Farmers Market structure is 

located on East Block with parking 

lot 

 

 

 

 

 

 

 

 

 

Greatest amount of public open 

space 

Open views to river from Main 

Street 



to downtown 







waterfront 

Improved floodplain conditions 

Similar to Option 3.A, and maintain 

all parking spaces in North Parking 

Lot 

 

 

 

 

 

 

 

 

No redevelopment to help fund for 

public space improvements 

Loss of parking spaces on North 

parking lot closest to downtown 


boat storage 



promenade 





promenade 


boat storage 

Farmers Market on southside of Main 

Street could influence flows during 

flood event 


Option 3.C Similar to Option 3.A and 3.B, with 

open outdoor Farmers Market 

without a structure 


 

 

Similar to Option 3.B, except no 

Farmers Market structure 

Best option for floodplain 

conditions 

 

 

 

 

 





promenade 


boat storage 

No permanent shelter for Farmers 

Market during inclement weather or 

year-round use 

No additional architectural element to 

help improve Main Street character 


Option 1.A – High Level of Redevelopment 


Option 2.A – Medium Level of Redevelopment 


Option 2.B – Medium Level of Redevelopment 


Option 3.A – Low Level of Redevelopment 


Option 3.B – Low Level of Redevelopment 


Option 3.C – Low Level of Redevelopment 


4.2.2 Land Use and Urban Design Options 

Land Use and Built Form 

The most effective way to improve the physical connection and extend the historic commercial core toward the river is by 

adding new buildings, preferably to both sides of Main Street. This will create more urban street edges and facilitate 

pedestrian movement, similar to the existing downtown. The existing core has street-related buildings of two to three storeys 

with-grade related retail and access and parking to the rear. New buildings should be of an appropriate scale and relate to 

their context. Ideally, a mix of uses with residential or office above retail would help to create an active pedestrian 

environment, but the existing development sites may not be able to accommodate certain building typologies and 

configurations. 

Farmer’s Market 

The Farmers Market is a long-standing downtown Dunnville institution and tourist attraction. It serves an important function for 

the local farming community and is a cultural hub that should remain related to the waterfront and the historic commercial 

core. However, the current shelter is utilitarian and not in an ideal location. A new structure--architecturally befitting its 

importance--could be repositioned to provide a better frontage along Main Street and to satisfy multiple urban design 

objectives. The market structure could be a stand-alone building or combined with other uses in a larger mixed-use project. In 

either case, accessible washroom facilities are an important element to consider. The Market should provide a focus for the 

downtown and signify entrance into the waterfront district. It should be of a flexible design to accommodate other uses and 

functions. Above all else, it should improve the primary market activities. 

Parks and Open Space 

Public access to the river’s edge is an important factor in strengthening the relationship between the downtown and the 

waterfront. The current Garfield Disher Park is some distance from Main Street and is flanked by the boat club and marina 

with no immediate frontage or access to the river’s edge. New walkways along the riverfront both east and west of the bridge 

would improve public access. Extending the park in some form towards the downtown will provide a green amenity along Main 

Street. Adding an informal facility such as an amphitheatre would provide a setting for gatherings and performances that take 

advantage of the riverfront setting. 

Precedents 

On the following pages are images to suggest an appropriate character for the Waterfront. The precedents are not a 

recommendation for what should happen or what Dunnville should look like; they are examples from other places to suggest 

what is possible in a similar context. The majority of the images were presented at community open houses and were useful 

to facilitate an informed discussion. 


Precedents: Expand Historic Commercial Core 


Precedents: Waterfront Access 


Precedents: Farmers Market 


Precedents: Waterfront Built Form 


4.3 Main Street Corridor 

The Main Street Corridor represents a significant component of Dunnville’s waterfront, and offers potential to allow for further 

connection and integration with the waterfront. The Official Plan identifies that the Dunnville Secondary Plan should assess 

and make recommendations regarding the establishment of urban design guidelines for the Main Street Corridor. The 

Haldimand County Streetscape Plan and Urban Design Guidelines (Streetscape Plan) identifies a number of improvements to 

Main Street. The Study area for the Streetscape Plan was based on the CIP boundaries and extends along Main Street from 

generally John Street in the west, to Tamarac Street in the east. The Streetscape Plan identifies a Main Street promenade 

and cross-section which provides a consistent right-of-way and links the CIP area and tourist destinations with the waterfront. 

It is not the intent of this Study to revisit these recommendations, but rather identify opportunities to implement the 

Streetscape Plan recommendations through the policies of the Secondary Plan, and consider opportunities for lands beyond 

the Streetscape Plan study area. 

The County is currently undertaking improvements to Main Street to implement the Streetscape Plan for Main Street that will 

result in an improved pedestrian and streetscape environment, making Main Street safer, more aesthetically pleasing and 

improving driving and walking conditions along this important corridor in Dunnville. 

The Dunnville Secondary Plan may implement through policy, the recommendations of the Streetscape Plan. This Study may 

establish urban design and built form guidelines for the development of buildings along Main Street to ensure the 

development of an attractive and cohesive streetscape. This may include establishing build-to-lines to ensure infill 

development is close to the street to create a vibrant and pedestrian oriented environment; and provide opportunities for infill 

development within existing parking areas to create a built form edge along the street. 

Issues and options for Main Street may include: 

identify appropriate urban design and built form guidelines for the redevelopment of lands fronting Main Street, and 

east of Tamarac Street, which are consistent with the Streetscape Plan; 

implement recommendations of the Streetscape Plan through policies in the Secondary Plan which encourage new 

infill commercial/retail development along Main Street and improved edge treatments to provide an attractive and 

pedestrian oriented streetscape along Main Street; 

opportunities to enhance the relationship of the downtown core to the waterfront through new infill development which 

faces the waterfront and provides linkages and greater pedestrian animation along Main Street; 

Main Street is an important truck route, and safe and efficient truck movements must be maintained; and 

future development requires addressing flood plain hazards. 



Land Use and Built Form 

The most effective way to improve the physical connection and extend the historic commercial core toward the river is by 

adding new buildings, preferably to both sides of Main Street. This will create more urban street edges and facilitate 

pedestrian movement, similar to the existing downtown. The existing core has street-related buildings of two to three storeys 

with-grade related retail and access and parking to the rear. New buildings should be of an appropriate scale and relate to 

their context. Ideally, a mix of uses with residential or office above retail would help to create an active pedestrian 

environment, but the existing development sites may not be able to accommodate certain building typologies and 

configurations. 

Streetscape 

Main Street is currently designed to accommodate vehicles first, with four mid-block travel lanes and no on-street parking or 

cycling facilities. The County Streetscape Master Plan does recommend improvements (‘sharrow’ bicycle markings, more 

visible crosswalks, new street trees and lighting, gateway at Main St. and Queen St.) but does not functionally modify the 

street cross section. Although a designated truck route, the current vehicular volume does not require the use of all four lanes. 

A more urban cross-section with one travel lane in each direction with the curb lane dedicated to parking and loading would 

provide a better balance of space. Adding curb extensions to define the parking lane at intersections and crossings would 

further improve the pedestrian environment. 

Precedents 

On the following page are images to suggest an appropriate built form and streetscape character for the Main Street Corridor. 

The precedents are not a recommendation for what should happen or what Dunnville should look like; they are examples from 

other places to suggest what is possible in a similar context. The majority of the images were presented at community open 

houses and were useful to facilitate an informed discussion. 


Precedents: Main Street Built Form and Streetscape 


4.4 Broad Street/Taylor Road Retail Node 

The Official Plan identifies that the Dunnville Secondary Plan should assess and make recommendations regarding 

establishing linkages, both economic and physical, between the emerging area of large format retail uses near Taylor Road 

between Broad Street (Highway 3) and Main Street to the historic commercial core of Dunnville; and consider the implications 

of the large format retail uses and historic commercial core on the intervening lands. 

The retail node, as illustrated on Figure 4.3, is characterized by a mix of large format retail, commercial retail, employment 

uses and large vacant land parcels. The new Canadian Tire and Sobey’s complex is located at the southeast corner of the 

intersection of Broad Street and Taylor Road (Site Specific Policy Area 29). Two development applications are currently 

being reviewed; the first is for a No Frills supermarket in the southwest quadrant of the intersection of Broad Street and Taylor 

Road (Site Specific Policy Area 42), for which zoning is in place to permit this development and a Site Plan application is 

currently under review; and the second is for a development proposal for an addition to the existing building, located at 1017 

Broad Street East, to permit commercial uses. A Market Impact Analysis has been completed for this property to assess the 

application and its broader impact on the historic downtown commercial core. The Analysis has been peer reviewed and 

extended to the parcels of land to the immediate east and west of the Broad Street property. The review concluded that 

additional commercial activity can take place at these sites. In addition, Site Specific Policy Area 43, which applies to the 

property located on the northeast corner of Taylor Road and Main Street, was intended to permit up to approximately 5,100m 2 

of new large format retail and commercial retail uses. 

Issues and options for the emerging Broad Street/Taylor Road Retail Node may include: 

urban design and built form guidelines to address large format retail development and the urban design objectives of 

the County; 

assess the intersection of Broad Street and Taylor Road as a potential gateway; 

assess implications of additional commercial uses in the area on the historic downtown commercial core; 

review development opportunities on vacant and/or underutilized lands; and 

future development requires addressing flood plain hazards. 


Figure 4.3 – Broad Street/Taylor Road Retail Node 



Land Use/Built Form 

As the emerging eastern gateway, the Retail Node should more effectively reinforce Dunnville’s small town character. The 

current developments assume a typical arrangement and architectural style more representative of the individual businesses 

found in any town or city. The site organization of buildings, surface parking and service areas should contribute in a more 

positive way. New buildings should be located to provide a stronger relationship to the street. Surface parking should be 

distributed throughout the site to the front, side and rear of buildings and be well-planted. Service areas should be located to 

the rear or side of buildings away from the primary street frontage and well screened with planting or fencing. Architecturally, 

the buildings should do more to fit into a small town and be more characteristic of Dunnville. 

Streetscape 

Broad Street, as it passes through the Retail Node, is the primary eastern route into Dunnville. The transition from rural road 

into urban place should be evident not only in the type and intensity of built form but streetscape character as well. Vertical 

elements such as street lights, trees and signs should identify this transition. Larger scale plantings should present an 

appropriate rural landscape character. 

Gateway 

This gateway into Dunnville is not only the intersection, but the entire retail node. A gateway can be a single structure such as 

a pylon sign with plantings, a ‘big’ thing similar to the Muddy Mudcat statue on the west side of Dunnville, or the arrangement 

of buildings and other elements and spaces to indicate the transition from the rural countryside into a townscape. The County 

owns land at the northwest corner of the Taylor Rd. and Broad St. intersection. This site is a possible location to develop a 

gateway feature, although a site further east might be more appropriate since it would not distract from the traffic signal 

operation. 

Precedents 

On the following page are images to suggest an appropriate built form and streetscape character for the Broad/Taylor Retail 

Node. The precedents are not a recommendation for what should happen or what Dunnville should look like; they are 

examples from other places to suggest what is possible in a similar context. The majority of the images were presented at 

community open houses and were useful to facilitate an informed discussion. 


Precedents: Broad and Taylor: Retail Commercial Site Organization and Built Form 


Precedents: Broad and Taylor: Gateways 


4.5 Broad Street Transition Area 

The Official Plan identifies that the Dunnville Secondary Plan should assess and make recommendations regarding 

brownfield/greyfield redevelopment opportunities; and regarding the establishment of urban design guidelines for the Broad 

Street (Highway 3) Corridor. In addition, the implications and linkages between the large format retail node and historic 

commercial core on these intervening lands should be considered. 

The Broad Street transition area is generally defined as the area of Broad Street between the historic downtown commercial 

core (Tamarac Street) to the emerging large format retail node (Figure 4.4). The Broad Street transition area is characterized 

by a mix of residential and commercial uses and employment uses. A consistent planning and urban design framework is 

required for the future growth/transition of the corridor. The Smucker’s Plant closed in November 2011. Reuse of the existing 

building and site should be further explored. 

Issues and options for the Broad Street transition area may include: 

establish physical linkages between the downtown core and the emerging retail node, through urban design and built 

form guidelines which provide for a consistent streetscape; 

defining appropriate lands uses and built form for the corridor; 

consider impacts on existing residential uses and land use transitions between commercial/ employment uses in the 

corridor (including the residential pocket at Brant and Brace Street); and 

use of the Smucker’s facility which is anticipated to close. 


Figure 4.4 – Broad Street Transition Area 



Land Use/Built Form 

The transition from the retail node to the downtown core is not immediate and takes place over several blocks. New 

development, whether residential or commercial, should be street related and contribute to Dunnville’s small town character. 

Parking and servicing should be located to the side or rear, rather than between the street and building face. Large 

consolidated parcels should be organized with a streets and blocks pattern to provide greater redevelopment flexibility. 

Streetscape 

Broad Street should have an Avenue character—lined with large canopy street trees and new street lights. Historic postcards 

indicate that at one time Broad was defined by American Elms to create a wonderful entry into the downtown. These two 

vertical elements should elevate the physical design character of Broad St. to match its important role in the community. 

Continuous sidewalks on both sides of the street should be provided, with well-marked pedestrian crossings at controlled 

intersections. The travel way dimension is greater than what is required for the current volume of vehicles, which may provide 

opportunity for formal bike lanes or sharrows to encourage cycling. Full-time on-street parking lanes should be defined by curb 

extensions at intersections. 

Precedents 

On the following page are images to suggest an appropriate streetscape character for the Broad Street Transition Area. The 

precedents are not a recommendation for what should happen or what Dunnville should look like; they are examples from 

other places to suggest what is possible in a similar context. The majority of the images were presented at community open 

houses and were useful to facilitate an informed discussion. 


Precedents - Broad Street Transition Area: Streetscape Trees and Street Lights 


5.0 RECOMMENDATIONS & NEXT STEPS 

The input and feedback received from the second Public Meeting/Design Workshop on November 8, 2011, has been used to 

prepare the Issues and Options Report. The Issues and Options Report will be presented to Council in February 2012 for 

endorsement and to request authorization to present the issues and options to the Public, particularly the preliminary 

redevelopment options for the County-owned lands. It is recognized that the preferred redevelopment option for the Countyowned 

lands may include certain elements from each of the various options. 

The Issues and Options Report will form the basis for preparing the first draft of the Secondary Plan and Special Flood Plain 

Policy Update, and Urban Design Guidelines in February 2012. 

It is anticipated that the Issues and Options Report, including the first draft of the Secondary Plan and Special Flood Plain 

Policy Update, and Urban Design Guidelines will be presented at the third Public Open House to be held in March/April 2012 

for public review and comment. 

Further opportunities will be available for review and input on the draft Secondary Plan and Special Flood Plain Policy Update 

which is anticipated to be presented to Council at the Statutory Public Meeting in May/June 2012.

& Special Flood Plain Policy Update

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