Sackville and Little Sackville Rivers Floodplains

Last Updated; April 8, 2025

PUBLIC HEARING NOTICE

Case 21402 – Sackville and Little Sackville Rivers Floodplains

The Public Hearing  to adopt proposed Sackville River and Little Sackville River floodplain amendments under the Regional Plan and the Municipal Planning Strategies and Land Use By-laws for Bedford, Sackville, Sackville Drive, and the Beaver Bank, Hammonds Plains, Upper Sackville plan areas (area planning documents), is scheduled to take place at Halifax City Hall (Council Chambers), 1841 Argyle Street, Halifax, NS on Tuesday, April 29, 2025 at 6:00 p.m. The hearing will continue for additional dates if necessary.   

Summary

The proposed amendment to the Regional Plan clarifies that all floodplain policies and regulations adopted within the Municipality will align with the Nova Scotia Statement of Provincial Interest Regarding Flood Risk Areas. The proposed amendments under the area planning documents are designed to:

  • encompass all areas that were determined to be areas at risk of flooding along the Sackville and Little Sackville Rivers under recent floodplain studies and floodplain mapping update.
  • introduce new floodplain policies and regulations to control development in additional floodplain areas that are beyond the floodplains that were identified under the Canada-Nova Scotia Flood Reduction Program.
  • amend the existing floodplain policies and regulations that were adopted for the areas identified under the Canada-Nova Scotia Flood Reduction Program; and set out a timeline for future floodplain review.

To read the staff report, please see item 15.1.4 Case 21402 – Update to the Development Controls along the Sackville and Little Sackville River Floodplains on the March 18, 2025 Regional Council agenda.

If you would like to determine if any portion of your property is within a floodplain, as determined by the 2024 Mapping Update, you can search for your property by address or property identification number on the Sackville Rivers Interactive Floodplain Map.

PLEASE refer to the STAFF REPORT maps and the proposed policy changes to determine how the various portions of the floodplains are proposed to be zoned and designated under this planning process.  

PROPOSED FLOODPLAIN DESIGNATION AND REZOING MAPS QUICK LINKS

Floodplain Designation Maps 

Beaver Bank, Hammonds Plains, and Upper Sackville

Bedford

Sackville

Sackville Drive

Proposed Zoning (Rezoning)

Beaver Bank, Hammonds Plains, and Upper Sackville

Bedford

Sackville

Sackville Drive

How to participate in the public hearing

To learn how to participate in person or virtually at Public Hearings, please refer to the instructions on how to participate at public hearings.

If you have questions about how to access the staff report or about the public hearing process, please email or call the Office of the Municipal Clerk at 902.490.4210.

Should you have questions about the Sackville and Little Sackville Rivers Floodplain project, or to make arrangements to view a paper copy of the staff report or have questions about the floodplain project, please contact Maureen Ryan via email (ryanm@halifax.ca) or call 782-640-0592.

This Public Hearing Notice was posted on April 8, 2025, on this webpage.

 

Previous steps 

2024 Public Information Meeting 

What We Heard Report

In August 2024, the Municipality held six Public Information Meetings to receive feedback on the draft floodplain regulations for the Sackville and Little Sackville rivers. The first three meetings were held at the Bedford United Church on August 21, 2024 and the second three meetings were held at the Sackville Lions Club on August 28, 2024.

A total of 241 people attended the public meetings with approximately 77 people attending the meetings in Bedford and 164 people attending the meetings in Lower Sackville.

The presentation on Case 21402 - Sackville Rivers Floodplains Proposed Floodplain Regulations can be viewed via this link:  Sackville Floodlines PIM Pres 23 Aug 2024

A summary of the comments that we received at these meetings can be viewed in the What We Heard Report. Below are links to the meeting notes from each recorded meeting with the questions that were raised and the responses that were given by the project team. The names of the residents asking the questions were redacted to protect the privacy of individual members of the public.

21402-MeetingNotesRedacted-PIM-24Aug21.docx

21402-MeetingNotesRedacted-PIM-24Aug28.docx

Thank-you very much for your input

Sackville and Little Sackville Rivers Floodplains

The municipality initially published the findings of the Sackville Rivers Floodplains Study (2017), on August 14, 2018. This study involved an assessment of the Sackville River and the Little Sackville River, and their watersheds, to produce updated floodplain maps. 

Sackville and Little Sackville Rivers Mapping Updates - March 2024

DesignPoint Engineering & Surveying was contracted, in early 2024, to update the Sackville Rivers Floodplain Mapping.  The same model that was selected to account for Climate Change under the 2017 CBCL study was used for this mapping update. The CBCL model was applied to a new LiDAR digital elevation model by DesignPoint to account for new survey measurements for the Lucasville and Beaver Bank Cross Roads bridges. The new digital elevation model also accounts for topographical changes that had occurred within the watershed up to 2019. 

For more detailed information on the 2024 mapping updates, please refer to the DesignPoint Engineering technical memorandum, dated April 12, 2024.

Determining if you live in a floodplain

View the 2024 interactive map to see if your property falls within the Sackville Rivers floodplains as determined by the by DesignPoint Engineering Sackville Rivers Floodplain Model Updates – Structure Investigation and Survey and Updated Mapping, March 2024. 

Please refer to the proposed zoning maps above to determine how any applicable floodplains traversing a property are proposed to be zoned at the upcoming Public Hearing before the Regional Council on April 29, 2025. 

Please allow time for the maps to come into focus.

Almost 900 properties have now been identified as being in the immediate vicinity of the proposed 1-in-20-year floodplain for the Sackville and Little Sackville Rivers (the number of properties previously in the vicinity when the floodplain maps were first drawn in 1983, was about 500). The map shows two floodplains: the 1-in-20-year floodplain and the 1-in-100-year floodplain based on the 2024 update of the 2017 study, including future climate change considerations to 2100. 

Please note that each type of floodplain is defined in the common questions section below.

If you are looking for the 2017 interactive map application, it is available here.

Municipal Planning Documents Amendments

Regional Council initiated a process to amend the floodplain zoning and policies under the Municipal Planning Strategies and Land Use By-laws for Bedford, Sackville, Sackville Drive, and Beaver Bank/Hammonds Plains/Upper Sackville (municipal planning documents).

In response to the updated floodplain mapping, municipal staff are reviewing policies and regulations in the following planning documents: 

•    Bedford Community Plan Area
•    Sackville Community Plan Area 
•    Sackville Drive Area Plan
•    Beaver Bank/ Hammonds Plains/ Upper Sackville Plan Area

These planning documents outline how and where various land uses are permitted. The information about floodplains has recently been updated using new information, technology and modelling tools.

The Planning Process

A quick overview of the steps in the process for an amendment to the policies and regulations are as follows:  

Step 1 – Regional Council initiates Sackville Rivers Floodplain Amendment process
Step 2 – Public open houses to review findings of the 2017 study 
Step 3 – Draft proposed policies and regulations
Step 4 – Public open houses and meetings – draft policies and regulations under revision (We are here)
Step 5 – Draft regulation and policy revisions posted online 
Step 6 – Staff report with proposed regulations and policies to Regional Council
Step 7 – Council gives First Reading 
Step 8 – Public Hearing
Step 9 – Planning Documents sent to Minister of Municipal Affairs for review

Previous Steps

2018 Open Houses - What We Heard

The Municipality held three open houses in 2018 to seek feedback on the findings of the 2017 CBCL Sackville Rivers Floodplain Study. The first two open houses were held on Thursday, September 20, 2018, from noon to 4 p.m. and 6 to 8 p.m. at the Kinsmen Community Centre, in Lower Sackville.  The third open house was held on Saturday, September 22, 2018, from noon to 5 p.m. at the LeBrun Recreation Centre, in Bedford.

Approximately 100 people attended the open houses. The most common theme reiterated throughout the events was that residents support the updated floodplains and agree something is needed to address flooding in the area. Concerns about the potential loss of development rights and concerns about insurance coverage were also expressed, along with fear for public safety.  Some had technical concerns and questions about the study and asked for additional information.  

2018 Summary Report of “What We Heard".

Sackville Rivers Mitigation Planning Study 2020

Following the 2017 Study, HRM contracted DesignPoint Engineering and Surveying to analyze the 2017 model and produce recommendations for action to mitigate impacts related to flooding within the Sackville Rivers floodplain (2020). In total, 17 actions are recommended for implementation. The recommended actions are presented in order of priority as recommended for implementation.  

The first priority action recommended for implementation is to restrict development within the floodplain as identified in the Phase II (CBCL, 2017) Report.  

A full summary of the recommendations for implementation can be viewed on pages 5 and 6 of the Sackville Rivers Mitigation Planning Study.    

Please note that the remaining recommendations from the 2020 Sackville Rivers Mitigation Planning Study will be brought forward to Regional Council for consideration under future projects.  Implementation of these future projects will require collaboration with other governments including the Province of Nova Scotia, Government of Canada, and the Municipality of East Hants.

The Sackville Rivers Floodplain project team is currently focusing on the implementation of recommendation number 1 – amending HRM planning documents to regulate development within the floodplains.

Municipal Planning Documents Amendments

Regional Council initiated a process to amend the floodplain zoning and policies under the Municipal Planning Strategies and Land Use By-laws for Bedford, Sackville, Sackville Drive, and Beaver Bank/Hammonds Plains/Upper Sackville (municipal planning documents).

In response to the updated floodplain mapping, municipal staff are reviewing policies and regulations in the following planning documents: 

•    Bedford Community Plan Area
•    Sackville Community Plan Area 
•    Sackville Drive Area Plan
•    Beaver Bank/ Hammonds Plains/ Upper Sackville Plan Area

These planning documents outline how and where various land uses are permitted. The information about floodplains has recently been updated using new information, technology and modelling tools. 

Common questions

What is a floodplain?

A floodplain is an area of land adjacent to a watercourse which experiences flooding during high flow periods because of, for example, high rainfall or snow melt runoff events. When left in a natural state, floodplain systems store and dampen floods. Natural floodplains can add to our quality of life by providing open space, habitat for wildlife, fertile land for agriculture, and opportunities for walking, fishing, hiking, and biking. 

If floodplains are not left in a natural state, river flooding can be amplified by increased ice jams, flow restrictions, and faster flows.

What is a floodplain map?

A floodplain map is a document used to identify areas that are at risk of flooding under certain conditions. Floodplain mapping is an important component of land use planning and can help increase public awareness of flood risks.

How is a floodplain map different from a zoning map?

The floodplain map is the map generated from the 2024 DesignPoint update of the 2017 CBCL mapping to represent the 1 in 20-year floodway and the 1 in 100-year floodway fringe.  

Zoning maps are the maps contained within the applicable land use by-laws that show the areas where the floodplain zones  apply.  Within these zoning lines regulations and policies will be developed to manage based on the 2024 DesignPoint Engineering & Surveying update of the 2017 CBCL Map #9. Zoning map lines may differ slightly from those presented in the interactive floodplain map application, due to the inclusion of “high point” areas within the floodplain that are predicted to be surrounded by water during a 1 in 20 or 1 in 100-year storm event that will likely be difficult to access during such an emergency. 

What are 1-in-20 and 1-in-100-year return period flood events?

These terms refer to the statistical probability of a flood event occurring in any given year.  

The 1-in-20-year return period flood event, referred to as "floodway", is where the most frequent flooding occurs and where the flow of water is the fastest. This floodplain has a 5% chance of flooding in any given year. It is important to note that this likelihood does not change from year to year, no matter how recently this area may have flooded. There is a chance that flooding can occur in the following year. With the 1-in-20 floodway that chance is 5% every year.

The 1-in-100-year return period flood event, referred to as a "floodway fringe", is where the area of land has a 1% chance of flooding in any given year. It is important to note that this likelihood does not change from year to year, no matter how recently this area may have flooded. The floodway fringe is the area between the floodway and the outer limit of the floodway fringe. Like the floodway, there is a chance that flooding can occur within the floodway fringe from year to year.  In the floodway fringe, that chance is 1% in any given year. 

Changing weather patterns, projected climate change impacts, erosion, and new development affect the flood risk areas and the extent of the floods, including the depth of the water and the duration of the flooding. 

Why were the floodplain maps for the Sackville Rivers updated? 

Cities across Canada are experiencing an increase in extreme weather events, often with heavy rainfall over a short period of time. Extreme events can lead to river flooding as the ground cannot absorb the rainfall. 

The municipality has a responsibility to regulate development in areas prone to frequent flooding to ensure the protection of people and infrastructure. The regulated floodlines of the Sackville River and Little Sackville River were developed in the 1980s and have become outdated due to changes in land use and precipitation patterns.  Taking these historic changes into account, as well as anticipated future changes due to climate change, the municipality engaged consultants to conduct various studies to update the floodplain maps of this area and reflect those changes. 

The 2017 Sackville Rivers Floodplains Study report confirms that the 1-in-20-year and 1-in-100-year return period floodplain mapping prepared under the 1980s joint Canada-NS Flood Damage Reduction Program is out of date and needs to be amended. The findings of the 2017 study were presented to Regional Council on August 14, 2018. 

Regional Council was informed of the 2024 DesignPoint Engineering & Surveying Sackville Rivers Floodplain Model Updates – Structure Investigation and Survey and Updated Mapping technical memo on [insert date here].

How are floodplains determined?

The 2024 DesignPoint Engineering & Surveying update of Map 9 of the 2017 CBCL model and mapping used computer modeling, and updated data which did not exist for the previous hydrotechnical studies. The flood risk areas were evaluated using the following information:

  • Up-to-date available LiDAR data and corresponding Digital Elevation Model (DEM)
  • Updated topographic survey information (Lucasville Road Bridge, Beaver Bank Cross Road Bridge)  
  • The flood modeling, mapping, and reporting from the Sackville Rivers Floodplain Study – Phase II (CBCL, 2017), including:
    • Existing and planned development current to the time of the report
    • Historic and recent storm and flooding events, including seasonal weather and floodplain characteristics
    • Available LiDAR, topography, water level, and flow measurements
    • Ice jam analysis
    • Research on climate change impact scenarios current to the 2017 study (Western University IDF CC Tool upper bound result for the 2070-2099 period)
  • The Sackville Rivers Floodplain Study - Phase I report (GHD, 2016)
Why are the proposed floodlines different from the previous (1980) lines?

The new floodplain mapping shows a larger flood impact for the 1-in-20 and 1-in-100-year flooding events because these new maps include considerations related to climate change on a timeline to the year 2100. It is anticipated that the Halifax Regional Municipality will experience more frequent, more intense precipitation events that are expected to result in increased flood depths, flood extents, and flow velocities within the Sackville Rivers watershed. 

How is climate change expected to affect the Halifax Regional Municiplaity?

In 2018, the world’s leading scientific body on climate change (Intergovernmental Panel on Climate Change (IPCC)) released a report that indicated that the risks of climate change can be reduced by limiting warming to 1.5 degrees Celsius (°C) above pre-industrial levels. If the world continues to emit its current level of greenhouse gases (GHGs), we will breach the limit of 1.5°C of warming in just ten years.

Projections indicate Halifax will experience sea level rise, higher temperatures, more heat waves, more rain and snow, more severe storms, and more flooding events and wildfires. Extreme weather also drives other climate hazards such as, decreased snowpack and unpredictable runoff.

Climate hazards pose risks for people, the built environment, natural systems and resources, economies, livelihoods, and safety. Examples of increased risks for Halifax include:

  • damage to physical infrastructure such as buildings, roads, communications equipment, and water and wastewater treatment plants;
  • reduced water quality and quantity;
  • stresses on agriculture and food systems;
  • threats to biodiversity and ecosystem resilience;
  • uncertainty for fisheries and forestry;
  • physical adversity and mental health impacts;
  • increased demands on emergency services;
  • financial impacts on businesses and economies; and,
  • diminished capacity of government to effectively provide public services.

To learn more about how the changing climate is expected to impact our municipality and what we are doing in response, please visit the HalifACT website. 

Was the July 21, 2023 rain storm a 1-in-20 or 1-100 event?

The return period associated with flooding related to the July 21, 2023 event has not yet been officially determined. Significant data management and statistical analysis of multiple data sources from several agencies (such as Environment and Climate Change Canada, among others) is required to determine the return period of any given flood event. During the events of July 21, 2023 some Government of Canada instrumentation and data collection infrastructure was damaged. Based on on-the-ground observations made by HRM during and immediately following the event, the flood extents were found to be consistent with the 1:100 year mapping (including climate change projections) proposed in the 2017 report.

Why is my property showing as being in the 1-in-20 and the 1-in-100 on the interactive floodplain map, but it did not flood in the July 21, 2023 flood event?

The Interactive Floodplain Maps consider not only historical information, but also future climate projections related to climate change. In the future, the Halifax Regional Municipality is expected to experience more frequent and more intense storm events which is expected to lead to flooding beyond what we have seen in the past. This means that even though you may not have been affected by flooding in the past, you may be at risk in a changing climate. Because the expected life of houses is often more than 100 years, the Interactive Maps include climate projections to the year 2100. Please visit the HalifACT page to learn more about how the changing climate is expected to affect the Halifax Regional Municipality, and how the municipality is responding.

What is currently permitted within the 1-in-20-year floodplain zones under the existing regulations?

Within the existing 1-in-20-year floodplain zones (FW-Floodway zone in Bedford, P-3- Floodplain zone in Sackville, FP- Floodplain zone in Beaver Bank/ Hammonds Plain/ Upper Sackville) development is limited to resource, agriculture, forestry, fishing and fishing related, water control and utility structures, open space, recreation, and conservation related uses. Development is limited in these existing floodplain zones as new structures or changes to grades can impact the flow of water and increase flooding impacts.

Existing businesses that are not permitted in the existing floodplain zones are considered non-conforming uses and are subject to the protections and restrictions set out in the Halifax Regional Municipal Charter.  Existing businesses are permitted to continue to exist and may be repaired and maintained provided the structure is not enlarged.  Where there are non-conforming existing business uses in a structure, the structure may not be rebuilt or repaired if destroyed or damaged by fire or otherwise to the extent of more than seventy-five percent of the market value of the building above its foundation.  In addition, non-conforming existing busniess uses may not be re-commenced if discontinued for a continuous period of six months. 

Existing homes that are not permitted in the existing floodplain zones are considered nonconforming uses and are also subject to the protections and restrictions outlined in the Halifax Regional Municipality Charter. Existing homes may be repaired or rebuilt if destroyed as long as it is substantially the same as it was before the destruction or damage and as long as it continues to be used as a residential use. 

Does my property insurance include floods? 

Provincial and municipal levels of government do not regulate insurance costs or coverage. 

Please check with your individual insurance provider for information on coverage options. A suggested question to ask your insurance provider is: Does my insurance cover water, septic or sewer back-ups, flooding from an overland flow of a river, the accumulation of water from a heavy rainfall and extreme storms, and other damage if my property is within a designated floodplain?

How do insurance companies determine flood risk?

Decisions concerning flood insurance are made by insurance companies through several sources of information. The Insurance Bureau of Canada (IBC) has confirmed that insurers purchase accurate, up-to-date flood mapping primarily from a private sector company that has flood maps for the entire country.  This ensures a consistent set of data for insurers to price risk.

How does living in a floodplain affect my property value?

According to the Property Value Services Corporation in Nova Scotia:

“Every property in the province, regardless of its location, is assessed at market value as of a given date in accordance with section 42 of the Nova Scotia Assessment Act by Property Valuation Services Corporation (PVSC), the independent assessment authority for Nova Scotia. Property assessments are based on market evidence, e.g., sales or financial data, which indicate the annual market for different geographical areas and groupings of property.  Additionally, PVSC takes into consideration the physical state of a property as of December 1 of each year to reflect any changes, such as renovations, demolitions, damage, etc. "
 
Questions about your property or assessment can be directed to PVSC at 1-800-380-7775 or inquiry@pvsc.ca.

Will the floodplain mapping be updated as new information becomes available?

Yes, the municipality is continually monitoring the Sackville and Little Sackville rivers and climate research to inform our work. The representativeness of the 2017 Sackville Rivers Floodplain maps will be reviewed by municipal planning and engineering staff at regular intervals as new information and technologies become available and usable, and mapping will be updated as deemed necessary. 

Will the floodplain mapping be updated as new information becomes available?

Yes, the municipality is continually monitoring the Sackville and Little Sackville Rivers and available climate research to inform our work. The continued representativeness of the 2024 updated Sackville Rivers Floodline maps will be reviewed by municipal planning and engineering staff at regular intervals as new information and technologies become available and usable. Mapping will be updated as deemed necessary.  

How can I prepare for a potential flood?

There are several websites, including FloodSmart Canada, and online documents such as Floods: How to Prepare and Floods: Knowing the risks. Suggestions range from not storing valuables in the basement, watertight doors and windows, elevating utilities, basement infill and installation of flood openings, wet flood proofing to sandbag dykes or temporary walls.

How long will it take for the new floodplain zones to be established?

As of summer 2024, Planning & Development staff are working to finalize drafts of the updated planning documents. In the coming months, the proposed policies and regulations will be presented to Regional Council for review and approval.  If approved by Regional Council, the updated documents will also be reviewed by the provincial government.

Do other areas across the municipality face similar issues?

Yes, there are other areas across the municipality facing similar issues. However, no other rivers in the Halifax Regional Municipality were designated in the 1980 Federal Flood Reduction Program. The Sackville Rivers have experienced and continue to experience frequent flooding. This was of particular concern in the 1980s because of the amount of development occurring at the time. 

Are other cities facing the same problem?

Yes. Many cities in Canada and around the world are facing the same challenges. Changing weather patterns, erosion and new development can affect the flood risk areas and controls on new development are often implemented whenever financial, safety and environmental impacts are a concern.

What are the current plans for flood mitigation? 

The municipality is in the process of assessing what can be done to help with flood mitigation, including investigating potential funding sources and researching flood preparedness.

The 2024 update of the Sackville Rivers floodplain models, and Sackville Rivers Floodplains Study (2017) focused on estimating potential flooding during specific flooding events. The 2017 report also includes recommendations for flood mitigation that focus on the protection of natural buffer areas that dampen floods and enhancing or restoring natural vegetated areas in the floodplain. This can increase the potential for infiltration of water into the ground and restore a more natural hydrologic setting to the area. Additional recommendations for flood mitigation are included in the 2020 Sackville Rivers Mitigation Planning Study.

What will the municipality do to help the landowners in the 1-in-20-year floodplain?

The municipality is currently investigating options for flood mitigation. 

In the short term, risks of flood damage can be reduced by following some simple measures, as described in the resources listed below. 

Questions?

For questions related to the Sackville Rivers Floodplains project, contact Maureen.Ryan@halifax.ca and Jessica.Harper@halifax.ca or call 311.

Additional Floodplain Regulation and Resources

Federal Resources

Provincial Resources

Nova Scotia Flood Preparedness

NS Government Flood Information

What to do if Your Property Floods

The Province of Nova Scotia include flood risk in the Statements of Provincial Interest. The flood risk statement applies to all flood risk areas that are designated under the Canada-Nova Scotia Flood Damage Reduction Program. The Sackville and Little Sackville Rivers are included in the program. The goal of the statement of interest for flood risk is to protect public safety and property and to reduce the requirement for flood control works and flood damage restoration in floodplain.

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