REGIONAL DISTRICTOF NANAIMO
S W HILL -DEEP BAY OFFICIAL COMMUNITY PLAN BACKGROUND REPORT
Preparedby the RegionalDistrict of Nanaimo PlanningDepartment
SHAW HILL - DEEP BAY OFFICIAL COMMUNITY PLAN BACKGROUND REPORT
TABLE OF CONTENTS
I.INTRODUCTION 1 1.1FORWARD 1 1.2PUBLIC CONSULTATIONPROCESS 2 1.3LOCATION OF PLAN AREA 3 2.HISTORY AND HERITAGE OF SHAW HILL - DEEP BAY 6 2.1OVERVIEW OFLOCAL HISTORY 6 2.2THE QUALICUM BAND 6 2.3EARLY EUROPEANSETTLEMENT 8 2.3.1Vancouver IslandFruit Lands 9 2.3.2Corcan-Fowler 9 2.3.3Qualicum Bay 9 2.3.4Bowser 9 2.3.5 Deep Bay 10 2.3.6Dunsmuir 10 2.3.7Dashwood 10 2.3.8Home Lake 11 2.3.9Spider Lake 11 3.SHAW HILL -DEEP BAY TODAY 12 3.1DEMOGRAPHIC ANALYSIS:POPULATION AND HOUSING 12 3.1.1Actual andProjected Population 12 Household 3.1.3 Size 14 Dwelling 3.1.4 UnitProjections 14 3.2ECONOMIC ACTIVITY 15 General 3.2.1 15 3.2.2.Tourism 15 3.2.3Industrial 17 3.2.4 Institutional 17 RESOURCE SECTOR 18 3.2.5Fisheries 18 3.2.6Aquatic Resources 18 4.NATURAL ENVIRONMENT 20 4.1ENVIRONMENTALLY SENSITIVE AREAS 20 4.2 FRESH WATER 22 4.3DRAINAGE MANAGEMENT 24 4.4NATURAL HAZARDS 25 4.5LOCAL GOVERNMENT TOOLSFOR PROTECTING THE ENVIRONMENT 26 5.RESOURCE USES 30 5.1AGRICULTURE 30 5.2FORESTRY 31 5.3MINERAL, AGGREGATE AND HYDROCARBON RESOURCES 32 5.3.1Aggregate Resources 32 5.3.2Mineral Resources 33 5.3.3Coal Resources 33 6 TECHNICAL REFERENCE TO BACKGROUND 34 6.2PHYSICAL FEATURES 34 6.2.1Terrestrial 34 6.2.2Marine 35 6.3HYDROLOGY 36 6.4TERRESTRIAL HABITAT 37 6.5COASTAL WILDLIFE 38 7.APPENDIX I - CLIMATE 40
8.APPENDIX H' 41
9.APPENDIX III 42
ii SHAW HILL-DEEP BAY OFFICIALCOMMUNITY PLAN
BACKGROUND REPORT
INTRODUCTION
1.1 Forward
The Shaw Hill-DeepBay BackgroundReport is intended to accompanythe Shaw Hill- Deep Bay OfficialCommunity Plan. Whereas the Official Community Plan provides a summaryof information and policiesand objectivesrelating to the development of Shaw Hill-DeepBay, this report provides detailed background information on history,natural resources,resource management, and populationtrends. Although not part of thePlan Bylaw,the background information inthis report should be referredtoby thoseusing the CommunityPlan since it provides a more complete understanding ofthe Plan Area l
The CommunityPlan will reflect the interests oflocal residents inthe community as well aslocal, regional, provincial and in some casesfederal goals and objectives and policies in orderto guide the development of neighbourhoods, allow for proper land and water uses, improveon the wellbeing of the community,and maximizeopportunities for area residents.The planoutlines local, regional and provincial policies and objectives, indicates localaspirations and identifiesa preferred pattern of landuse and neighbourhood developmentwithin the Plan Area.The Backgroundreport provides the technical informationwhich is necessary for developing the broad objectives of the community respectingthe form and characterof existingand proposedland use and servicing requirementswithin the Plan Area. 2 The Shaw Hill- Deep Bay OfficialCommunity Plan in turnis the basisfor implementing the bylawsto regulateand controlland use and development.3 Thiswill provide citizens and interestgroups with a frameworkagainst
1 For more detailedtechnical background on physicaland environmentalfeatures please refer to theShaw Hill-DeepBay TechnicalBackground Report 1989. 2 The sequenceof planning in the study area begins with the District 69 RegionalPlan in 1975,which covered the area of SchoolDistrict No. 69 andset the role for various areas including Qualicum Beach and Parksville, aswell as unorganized areas suchas Shaw Hill-DeepBay. The District69 Planwas repealedunder changes to the Municipal Act in 1984.In theearly 1980'sit became evident that policies which would guide the growth and developmentwere required in the Shaw Hill-Deep Bay areaas the population ofthe area climbed. Studies were initiated and a draftsettlement plan and backgroundreport were preparedby consultantsforthe Regional District ofNanaimo. The firstcommunity plan, termed a settlementplan under past legislation,was adopted in July 1983, and amended in May 1986.It was reviewedin 1988, and the updated plan was adopted asBylaw No. 747 in the fall of 1988. 3 The RegionalDistrict has the mandate to adopt community plans and subdivisionand land use bylaws for unincorporated areasof theRegional District. At the time of preparationof this plan the "Regional District of Nanaimo,Land Use and SubdivisionBylaw No. 500, 1987" was ineffect as the implementing bylaw which regulated the location and useof buildings
Page 1 Shaw Hill- Deep Bay OfficialCommunity Plan Background Report
whichdevelopment proposals and actions will be considered,thereby reducing uncertainty asto what land uses will be permitted.
OfficialCommunity Plans are intended to be reviewedthrough a detailedpublic process on a periodicbasis. The mostrecent in depth review was priorto 1986when theoriginal officialsettlement plan was prepared.4 Planninglegislation andProvincial Policy initiatives have undergoneconsiderable changes since the originalreview. 5 Thisdocument will providethe background necessary tocoordinate the Official Community Plan policies with provincialpolicy initiatives andupdate the plan with community input 6.
1.2 PublicConsultation Process
The publicconsultation process in review of the Shaw HillDeep Bay OfficialCommunity Planwas launchedwith extensive public input at a veryearly stage of plan preparation. In March 1995the Regional District hosted an Issues and Concerns Forum forthe Shaw Hill Deep Bay OCP reviewat the Lighthouse Community Centre. The purposeof theforum was to identifyimportant issues and concernswithin the community to addressthrough theplan revision. The forumwas wellattended with a totalparticipation of 135 persons. Thirteenworkshop groups composed of approximately 10 to 20 personseach were asked to discussand recordissues and concernsof importance to thecommunity. The issues, concernsand prioritiesidentified by each workshopgroup were summarizedin a preliminaryissues and concerns paper . Thispreliminary report was made availableinthe communityfor further review and discussion.
Followingthe Issues and ConcernsForum, neighbourhood focus group meetings were heldbetween April and May 1995in the following neighbourhoods: Dashwood, Corcan- Fowler,Spider Lake, Dunsmuir,Qualicum Bay, Bowser and Deep Bay. The neighbourhoodmeetings focused on issuesand concernsfrom a neighbourhood
and structuresand theuse of and subdivisionofland including the surface of waterwithin the planning jurisdiction ofthe RegionalDistrict exclusive ofElectoral Area "F". 4 The Shaw HillDeep Bay OfficialCommunity Plan Bylaw No. 790 was adoptedin 1990. This plan was an interimconversion ofan earlierOfficial Settlement Planwhich was adoptedin 1988.The Shaw Hill- Deep Bay OfficialCommunity Plan was intendedto be reviewedafter 5 years in order to respond to changes in legislation andcommunity needs). 5 Major changes in ProvincialPolicy initiatives include the revisionsto MunicipalAct, Health Branch Guidelines, Environmental ProtectionGuidelines, Agricultural Forest Land Reservelegislation and Ministryof Transportationand HighwaysPlans. The Regional Districthas the mandate to adopt community plans and subdivisionand landuse bylaws in unincorporatedareas of the RegionalDistrict pursuant to the MunicipalAct. The MunicipalAct now requirescloser coordinationwith School Districtpolicies and planswith the preparation ofthe Official Community Plan. The MunicipalAct alsopromotes new planningtools to local government for achieving community interests, including affordable housing and provisions,school amenity siteacquisition provisions, development permit areas, social planning, heritage and cultural planningopportunities andenvironmental protection. 6 Zoningbylaws have also followed a sequence related tothe adoption of plans and changesin the Municipal Act. Subdivision andZoning Bylaw No. 203 came intoeffect in 1985for Electoral Area H, followedby ZoningBylaw No. 395 in 1982for ElectoralArea 'G'. Since 1984, Land Use andSubdivision Bylaw No. 500 hasbeen in effect inthe area; this is a comprehensive regulatorybylaw.
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perspective,helped establish neighbourhood priorities and ways of addressingthe issues and concerns.Also, in orderto encouragewritten comments on majorissue areas, an opiniongenerating survey was conductedthrough bulk mailing of a questionnaireto all residents inthe Plan Area. The responsesto the questionnaire have been summarized to assist inidentifying issues and concerns of individuals which may nothave been expressed atthe forum or at the neighbourhood meetings.
The issues,concerns, priorities anddirection identified through the forum, neighbourhood focusgroup meetings and the survey have been summarized in a documententitled "Shaw Hill- Deep Bay OfficialCommunity Plan Review: Public Consultation". The information provided throughthis initial public consultation process provides guidance for the preparationof this Background Report. Combined with the technical review, workshop withthe Community Plan Advisory Committee and governmentagency representatives, andfurther public input meetings, the background report serves as the basis for addressing issuesand concerns in the revision ofthe Official Community Plan.
1.3 Locationof Plan Area
Shaw Hill- Deep Bay OfficialCommunity Plan Area' is located in the Regional District ofNanaimo. The PlanArea comprises all of Electoral Area "H",and the most westerly portionof Electoral Area "G" 8 adjoiningTown ofQualicum Beach. Shaw Hill- Deep Bay includesthe neighbourhoods ofDashwood, Corcan - Fowler,Spider Lake, Home Lake, Dunsmuir,Qualicum Bay, Bowser and Deep Bay.
The followingadditional information related tothe location ofthe Plan Area are noted: • Map 1.1illustrates thelocation ofthe Plan Area boundaries; • The Plan Area includes306 squarekilometers and stretchesalong the Straitof Georgiafrom westerly boundary of the Town ofQualicum Beach to Deep Bay; • The PlanArea is northwest and adjoiningElectoral Area "F" and theremainder of ElectoralArea "G"; • The northwestboundary of the Plan Area borders on theRegional District ofComox Strathcona; • The westerlyboundary of the Plan Area borders on theAlberni Clayoquot Regional District;
7 The CommunityPlan and Background Reportwill consider the terms "Shaw Hill- Deep Bay","Shaw HillDeep Bay Plan Area"and "Plan Area" to be synonymous with the location ofthe Plan Area described inthis section. g The Westerlymost portionof Electoral Area "G" hasbeen included in the Community Plan Area because of its location, physicaland environmental characteristicsaremore closelyaligned with Electoral Area "H" and thecoastal setting between Town ofQualicum Beach and Deep Bay.
Page 3 Shaw Hill- Deep Bay OfficialCommunity Plan Background Report
Shaw Hill-Deep Bay PlanArea includes Horne Lake, Spider Lake, and a largenumber of smallerlakes within its boundary. Two majorrivers, The Qualicum River and a portionof LittleQualicum River are contained within the Plan Area.
Page 4 COMOX -STRATHCONA REGIONAL DISTRICT
ALBERNI - CLAYOQUOT 4,1AY REGIONAL DISTRICT ALBERNI SHAW HILL - DEEP BAY 1 OFFICIAL COMMUNITY PLAN AREA Shaw Hill- Deep Bay OfficialCommunity Plan Background Report
2. HISTORY AND HERITAGE OF SHAW HILL - DEEP BAY
2.1 Overview of Local History
Itis important that the historyand cultureof thecommunity is well understood and appreciatedto give full meaning to the Official Community Plan. It is for this reason that thisreport will devote attention tothe history ofthe various communities within Shaw Hill - Deep Bay and upon theQualicum Band ofIndians. The historicalinformation inthis sectionis a compilationof informationfrom varioussources including input at neighbourhoodfocus group meetings and information provided by theQualicum Band of Indians.It is hoped that this information will give insight and understandinginto the historyand cultureof the Plan Area and ensurethat the past is reflected upon when we planfor the future.
The historyof Shaw Hill- Deep Bay shouldfirst be viewedfrom theoverall historical perspectiveofhuman occupationofthe east coast of Vancouver Island, which dates back thousandsof years.The PlanArea was traditionallywithin the influence of theCoast Salishpeople, specifically, the Pentlatch Linqustic Group. These peoplewere semi sedentary,concentrating during winter months in wellprotected settlements along the coast.
The Shaw Hill- Deep Bay areawas a fishingand hunting destination forthe Coast Salish people,who livedprimarily atthe mouths of well protected rivers in settlements. During thespring and summer months groups would fan out to localized encampments within the PlanArea as wellas otherhunting and fishinggrounds on thesoutheastern coast of VancouverIsland and othersmaller islands off the east coast. Evidence of shellmiddens and wood weirsat the mouths of the Big andLittle Qualicum Rivers indicate that these weremajor salmon fishing areas during the summer periods. Shell middens have also been locatedat other areas along the coast.
2.2 The Qualicum Band
The followingisa briefhistory of the Qualicum People as told by theQualicum Band of Indians.
The QualicumBand isa smallBand situatedon the mainwinter site of the original Pentlatchpeople which extended from the Cape Lazo/Kye Bay areato Craig Bay.
Thereare two familieson theQualicum Reserve today. The Recalmafamily traces its routesto the original Pentlatch people. The Reid family are descendants ofthe daughter of QualicumTom's second wife Annie, a Kwakewlthwoman fromFort Rupert whose first husbandwas anEnglishman named Joe Little.
Page6 Shaw Hill- Deep Bay OfficialCommunity Plan Background Report
The Pentlatch languageis now extinct.As many asfour subgroups of the Pentlatch have beenidentified. The last of the northernmost Pentlatch people joined the Comox people afterthe Comox peoplehad been driveninto Pentlatch territory from theirKelsey Bay/Quadra Islandarea by themore aggressiveLekwiltok (Southern Kwakewlth) people in theearly 1800's. The lastknow Pentlatchperson living on whatis now known asthe Comox Reserve,Joe Nimnim, died in the 1940's.
The QualicumReserve is located on themain winter site of the subgroup of the Pentlatch peopleto whichQualicum Tom's family belonged. The peoplefrom this area were called 'Salalhem'which means the Place of the Green Leaves.
Fishing has alwaysbeen the mainstay of theQualicum people. Qualicum Tom had a flourishing businessas earlyas 1884.In a reportby W. H. Lomas,Indian Agent, dated November 20,1884, it was notedthat Qualicum Tom had a generalstore which was a greatbenefit toboth Indians and Whitemen traveling theAlberni Trail. Inan ad inthe May 19,1886 NanaimoFree Press Qualicum Tom offersa canoefor hire to eitherfish in Horne Lakeor to transport 8 to 10 passengersacross the Lake to the trail leading to Port Alberni.He was alsowell known forsupplying salted and smoked fish and dogfishoil to passingships.
The presentBand membersare still dependent on thefishery, although members of the Band canbe found in many otherprofessions.
The educationlevel of themembers of theQualicum Band ison parwith that of the surroundingcommunity and dependenceon welfarewas virtuallyunheard of untilvery recently.
The Band issituated on Federal Crown landwhich is held In Trust for the members of this Band.Councils are elected every two yearsunder provisions setout in the Indian Act.
Studentsfrom the Reserve attend Public Schools at the discretion oftheir parents. A large numberof students belonging tothe Band haveattended Private Schools over the past 25 years.
Housingon theReserve is on parwith the surrounding community and is handled by the Band Council.More thanhalf the members belonging to theBand liveon theReserve. The restare scattered around the Island and the Lower Mainland.
The Band hascomplete authority over its economic development plans and hasalways triedto maintain a working relationship withthe surrounding community. For instance, the Band Councilhas not allowed billboards on the reserve along the Island Highway in order toprotect the character ofthe community. There has always been an attemptto harmonize theactivities ofthe Band withthose of itsneighbours. For instance,when theRegional Boarddeveloped a house numbering system which stopped at one side of the Reserve and
Page 7 Shaw Hill- Deep Bay OfficialCommunity Plan Background Report
beganagain on theother side, the Council of the day changed the numbering which had beendeveloped on theReserve and blended the new numberswith those of the Regional Board.
The Band intendsto maintain its autonomy while endeavouring to harmonize development withthe surrounding community.
2.3 EarlyEuropean Settlement
Unlikeother areas within the Regional District of Nanaimo whichwere experiencing extensive settlementwell before the turn of the century, the Plan area had a relativelylate start interms of arrival ofEuropean settlers. A small number of settlers arrived inthe area as earlyas 1886.Their initial settlements were temporary in nature, and located along the coastnear rivermouths. The earliestarriving settlers were searchingfor farmsteads of theirown or employmentin the forest industry. One ofthe earliest and legendary of these settlers was known asKincaid. Itis believed that Kincaid sailed around the Horn, and was one ofthe first settlers on the east of VancouverIsland. Around the turn of the century, thelocal Indians erected a log house and barn for Kincaid in Dashwood nearthe mouth of Little QualicumRiver. Although the log house is still standing, and needsrestoration. it now servesas a residenceand officefor the Canadian Wildlife Service naturalist. The MarshalStevenson Wildlife Sanctuary now surroundsthe home.
Itwasn't until the 1890'sthat a horsetrail along the shoreline of theeast coast of Vancouver Islandconnected the small hamlets and villageswhich were evolving to the south ofthe Plan Area at Qualicum Beach and Parksville and to destinationsnorth of the Plan Area.The richnessof the forestry resource industry, opportunities forfarmers and improvedaccess by railand road eventually increased the numbers of peoplethat moved to thispart of VancouverIsland. As thepopulation increased, so too didthe amount of trafficon theroads. Horses were eventuallyreplaced by motorizedvehicles as themain meansof travel, and correspondinglythehorse trails were upgraded to gravelhighways. The roadswere eventually paved between the years 1947 - 1954.The naturalbeauty of thecoastal setting of thePlan Area coupledwith major improvements to accessibility madethe area very attractive forretirement and tourism activity.
The presenceof the Island Highway may havebeen a verysignificant factor for population inShaw Hill- Deep Bay.Historically, most ofthe growth in the Plan Area was along Highway 19 withmore settlementon theocean side to theHighway. The settlement patternis based on theearly subdivision activity by E&N between1908 and 1947and is describedfor various early settlement "neighbourhoods" below:
Page8 Shaw Hill- Deep Bay OfficialCommunity Plan Background Report
2.3.1 VancouverIsland Fruit Lands
Despitethe arrivalof the earlyexploratory settlers, the Plan Area did not experiencesignificant increases in population(as comparedto otherparts of SouthernVancouver Island which may have experiencedgrowth much earlier) untilthe completion ofThe E&N Railwayin 1908. The constructionofthe railway and thesubdivision of lands acquired by E&N throughthe ensuing E&N Land Grantcreated the firstresidential settlements in the Plan Area.The earliest subdivisionsregistered date back to 1912-1914when theVancouver Island Fruit landswere createdfrom theE&N Lands and resultedin thefirst agricultural settlersarriving inrelatively significant numbers to the area 9.
2.3.2 Corcan-Fowler
CorcanFowler and areas to the west of Bowser were among thefirst areas within thePlan Area subdivided and made availablefor agricultural settlement between 1912 and 1917 by theE&N Land Company as partof thecommitment for the E&N Land Grant.Many ofthe large lots created stayed vacant for many years beforethey were actually settled on by farmersor in some caseswere returned to theCrown andremain vacant today.
2.3.3 QualicumBay
Signsof subdivision forcoastal settlement were not experienced atQualicum Bay until1921 when sixparcels were created in the vicinity ofthe existing commercial core of QualicumBay. The areatransformed into a retirementand tourist commercialcentre after the 1950's due to its beauty, coastal setting and improved accessibilitywiththe paving of VancouverIsland Highway. In the pastfifteen yearsthe addition of LionsCommunity Hall, ballpark, seniors housing, firehall, localbusiness and tourismhave made QualicumBay a centrefor community business,culture, recreation and pride for all residents ofShaw HillDeep Bay.
2.3.4 Bowser
Bowserhas evolved in the past 40 yearsas a touristcommercial and coastalrural retirementcommunity with a concentrationof the development on theeast side (oceanside) of theTrans Canada Highway stretching north towards Deep Bay. The Legionand localgrocery store and PostOffice on Highway 19 providea focusfor the suburban residential neighbourhoods and tourist commercial resorts inthe community.
9 Between1912 to 1928 there were225 lotscreated by E&N Land Company whichincluded the Vancouver Island Fruit Lands (96 agriculturallots created atCorcan Fowler in 1912 through1914, 91 ruraland waterfrontresidential parcels created at Bowserbetween 1913 to 1928).
Page 9 Shaw Hill- Deep Bay OfficialCommunity Plan Background Report
2.3.5 Deep Bay
The drivingforce behind settlement of the Deep Bay neighbourhoodwas developmentof the fishprocessing industry in the area.A fishproduction (reduction)plant was builton theDeep Bay Spitin the mid 1930'sas wellas homesfor approximately seventy-five families. The plantwas torndown in1951 when thelease held by B.C.Packers expired. However, the natural harbour of Deep Bay encouragedthe development ofthe local fishing industry and fishing has continuedin importancewith the establishment of the governmentwharf. The wharfprovides moorage and loading facilities to an activefishing fleet. The spit hasbeen transformed into a suburbanresidential retirement community over the lasttwenty years.
2.3.6 Dunsmuir
Dunsmuirappeared on themap asa railwaystation shortly after E&N createda 28 lotresidential subdivision in 1948. Although many lotswere createdin the early 1900'smany stayedvacant until more massivemigrations occurred in the 1940's, particularlywhen peoplearrived from the prairies insearch of less draught stricken farmland.Many peoplealso settled inthe area to be closeto work inthe forestry industry.Gradually Dunsmuir grew with people employed in farming and logging. Thisarea has more recently become more attractive fora retirementpopulation as wellas young families who arewithin commuting distance totheir place of work.
Withthe completion of the Inland Highway Project in 1996 the time required for commutingthrough Dunsmuir may onceagain be drasticallyreduced. As Home Lake Road willbe theonly major intersection with the new Highwaywithin the PlanArea, and Home LakeRoad willconnect the New Highwaywith Highway 19 throughDunsmuir, this area is expected to be underconsiderable pressure for residentialandcommercial development inthe near future.
2.3.7 Dashwood
Thisarea was firstchosen by Kincaidfor his cabin, and latergrew due to its proximityto employmentin forestryindustry with people. The Crump Hotel, (establishedinthe early 1900's) in Dashwood was probablythe earliest tourist commercialventure in thePlan Area. Dashwood alsoincluded the Women's InstituteHall which contributes significantly tothe cultural history ofthe Plan Area and whichis still an importantfacility inthe community. Dashwood iscurrently a ruralresidential community at the fringe area of Town ofQualicum Beach.
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2.3.8 Home Lake
The Home Lakeland holdings (District 251 AlberniLand District)were acquired fromE&N Land Company by Home LakeLumber Company whichowned itfrom 1919to 1946.With the construction ofthe first logging roads to Home Lakeit quicklybecame attractive forsummer recreation. As early as 1928employees and friendsof theLumber Company builtcottages adjacent to theLake. There was evena smallpost office and smallschoolhouse built at the east end ofthe Lake whichwas called"The Bay". The practiceofallowing these cabins continued with theBC CementCompany butthe unregulated nature of thearea also encouraged squatteractivity. The Departmentof Fisheries purchased a part of the shoreline of Home Lake whereBig Qualicumexits in order to construct the dam andspillway forthe Big QualicumFisheries Project. This dam and waterdiversion project accommodatedcontrolled water flow levels for an artificialspawning channel'''. The FisheriesProject began in 1960 withagreements between the owners of DL 252 forthe Right of the Department of Public Works of Canadato raise and lower thelevel of waterin Home Lake.A conditionalwater licence sets the spillway levelof the dam at412.3 feet. This meant that most of the cabins and recreational siteswould be atrisk of flooding inextreme runoff situations.
TexadaLogging Company purchasedthe Home Lake landholdings in 1969. Today a publicroad traverses the property and providesaccess to Home Lake CavesProvincial Park. In 1978Texada Logging created a 37 lotcampsite at the westernend of the lake. The Campsitewas intendedto servethe traveling public. At the same time TexadaLogging developed a conceptof sixtyfoot wide "campsites"or recreational sites along the shores of Horne Lake availableon an annualrental basis. There are now 350 recreationalsites on HorneLake, with cabinsand improvements. Most ofthe cabins were constructed incontravention of RegionalDistrict Bylaws between 1976 and the present.
2.3.9 SpiderLake
The SpiderLake area was developedin the early 1980's with rural 8.0 hectare (20 acre)parcels on the eastside of thelake. Spider Lake ProvincialPark was establishedin1980 on thesouth side of the lake and the rural subdivision ofland in thearea also designated a portion of the lakefront as parkland.Rural residential dwellingshave been constructed on mostof theSpider Lake arealots and are primarilyoccupied by retiredorsemi -retiredpeople.
10 The FederalDepartment of Fisheriesand Oceanspresently operates a salmon hatchery and spawningarea in thelower reachesof Big Qualicum River. The FederalGovernment owns theland adjacent Big Qualicum River up toHorne Lake as part ofthe project. Water supply for spawning/hatchery the isfrom Horne Lake, with flows and temperature controlled bya seriesof intakevalves feeding penstocks whichdirect water into the natural river channel, downstream from Horne Lake. The darnand spillwaywas completed in1962 across the former Big Qualicum River outflow channel at the easterly end of the lake to control thewater supply for this major fisheries program.
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3. Shaw Hill-DeepBay Today
3.1 Demographic Analysis:Population and Housing
3.1.1 Actualand ProjectedPopulation The Populationof Shaw HillDeep Bay as determinedby the1991 censuswas 3,207persons. The estimated1996 populationis3,690 persons. Based on long termgrowth trends the population could exceed 4,500 persons by the year 2001. 11
Whilerecent population growth rates in all the incorporated areas of the Regional DistrictofNanaimo have bee high, they vary significantly among jurisdictions. The Shaw Hill-DeepBay PlanArea experienced lower growth rates than other areas of theRegional District ofNanaimo, yet growth was steadyif viewed over a longer periodof time.
Based on relativelystable yet increasing growth rates in thePlan Area,the populationwill continue to follow an upwardpattern. Using population projection methods,it is estimated that by theyear 2001, the population of thePlan Area couldincrease to a low estimateof 4,000 to a highestimate 4,655 persons. The rate of growthhowever may increaseeven more rapidlythrough the influence of thefollowing:
• improvedaccessibility to the Plan Area(completion of the InlandIsland Highwayand future transportation opportunities).
• increasedmigration toVancouver Island;
• improvementsto community infrastructure andamenities; and
• availabilityand affordability of housing units within the Plan Area and other areasof the Regional District.
Dependingon thedegree of these influences, thePlan Area will have a population between4,500 and 7,000 persons by theyear 2011 andbetween 5,000 and 8,000 personsby theyear 2021. 12
ii Populationgrowth rates for the Regional District ofNanaimo indicate that the population has not grown at a consistentor predictablerate. In the fifty three years from 1941to 1994, the RDN's populationhas increased by more than 630%. Fiveyear growthrates between census periods have varied from a low of7% toa highof 29%. 12 Alsorefer to "Population, Demographic,and EconomicForecasts for the Regional District of Nanaimo",March 1995, RegionalChallenge and Choice, RegionalDistrict ofNanaimo.
Page 12 Shaw Hill- Deep Bay OfficialCommunity Plan Background Report
Shaw Hill-Deep Bay: Actualand ProjectedPopulation
5000
4500
4000
3500 Low c 3000 Growth 0 ---M--Medium Growth s 2500 — - HighGrowth a- 0 et.2000 -*
1500 —
1000
500
0 1971 1976 1981 1986 1991 1994 1996 2001 Year
3.1.2 Age Trends The RegionalDistrict ofNanaimo is experiencing population increases inall age categories.Increases inthe number and proportion ofseniors, middle-aged people, andin the number of children, and decreases inthe proportion ofyoung adults in the20-34 age category are noticeable trends.
Seniorsrepresent one of the fastest growing groups in the Plan Area.
Page 13 Shaw Hill - Deep Bay Official Community Plan Background Report
Shaw Hill-Deep Bay: Population by Age Groups
450
400
350
300
•„.9 250
▪aO. 200 13 Number
150
100
50
15-24 25-34 35-44 45-54 55-64 65-74 75- Age Groups
3.1.3 Household Size
The average Regional District of Nanaimo household size declined gradually between 1981 and 1991. This is consistent with a Canada-wide trend towards smaller households. In general, people are marrying later and having smaller families. Single-person households are also more common due to increases in the number of unmarried and elderly single people.
The trend towards smaller household sizes is less evident in Shaw Hill - Deep Bay because household sizes in general have tended to be lower in this area of the Regional District of Nanaimo. Statistics reveal that the average household size was 2.4 persons per household in the 1981, 1986 and 1991 census counts
3.1.4 Dwelling Unit Projections
With the increase in population expected within the Plan Area, it is projected that between 900 and 2000 new dwelling units will be needed in the jurisdiction by the year 2021.
Page 14 Shaw Hill- Deep Bay OfficialCommunity Plan Background Report
3.2 Economic Activity
3.2.1 General
Economicactivity inthe Plan Area focuses around primary resources (forestry, fishingand agriculture), tourism and support services for the population. Tourism andsupport services appear to be playinga larger role than in the past, with the numberof persons reliant on forestry and the commercial fisheries foremployment remainingconstant and thenumber of personsemployed in the service industry rising.The highproportion ofretirement agepersons has a stronginfluence on the developmentofthe economy in the region, they provide a strongeconomic drive to thedevelopment of thecommunity through their retirement incomes and also influencethetypes of services which develop.
3.2.2.Tourism
The outdoorresources and accessibility tofishing areas contribute tothe appeal of thePlan Area as a tourismand outdoorrecreation destination fornon residents. The tourismdraws include the provincial parks, fish hatcheries, beach access points,government wharf in Deep Bay andextensive forested areas.
The typeof touristaccommodation generally offered consists of campsites,RV unitsand smallmotels. Most developmentsare dependent on theirseaside or riversidelocation with beach activities, boatlaunches, boat rentals, fishing or charterboating available tothe guests.
Most ofthe resorts and campgrounds are long established destination areas. The Ministryof Tourism,Recreation and Culture'Saccommodation guide lists 18 establishmentsin the Plan Area.Also, the Plan Area includesa numberof campgroundswhich have been converted from servingthe traveling public (or shortterm visitor accommodation) into campgrounds with seasonal clientele who returnto a designatedcampsite year after year. Texada Logging Company operatescampsites for the traveler atthe western end of Home Lake,at the mouth ofthe Big Qualicum River.
The PlanArea also has a highnumber of privatelyowned seasonalresidences. Theseinclude summer dwellings and cabins which may notbe occupiedall year. In particular,Home Lake hasa concentrationof summer cabins but there is also seasonaloccupation within rural residential areas as well. This seasonal population isnot reflected in the censuspopulation projections butit contributes to the economyof the Plan Area while demanding some of the same services and outdoor recreationopportunities aspermanent residents ofthe Plan Area.
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The estimatedovernight tourist accommodation for the Plan Area is between 3500 - 4000 personsduring peak periods (not including wilderness camping or private forestland).
In additionto accommodation,there are several restaurants and combinedcafe, groceryand servicestations which serve both residents and tourists.Several handicraftand souvenir outlets also serve both markets.
Major EconomicActivities inthe Plan Area (notin order of importance)
1. Forestcompanies (e.g. Macmillan Bloedel) and contractors 2. Touristaccommodations and resorts 3. Smallconstruction companies and construction supply 4. Agriculture 5. Services(restaurant, realty, office automotive, bank, secretarial service) 6. Stores(grocery, craft, electric) 7. Smallindustries 8. Commercialfishing 9. Oysterleases 10.Fish hatcheries 11.Utilities (iewaterworks operations) 12.Qualicum Indian Band FishProcessing Plant
Page 16 Shaw Hill- Deep Bay OfficialCommunity Plan BackgroundReport
Touristand ResortAccommodation
NAME OF ACCOMMODATION LOCATION RESORT CAMPIN TOTAL G
1. QualicumBeach Trailer Park Dashwood 23 23 2. OceanBeach Resort Dashwood 1 10 11 3. RiversideResort Dashwood 35 47 82 4. CedarGrove Tent and Trailer Park Dashwood 4 100 104 5. CostaLotta Campground CostaLotta 70 70 6. GreenGables QualicumBay 6 6 7. LighthouseMotel Bowser 4 4 8. AvoradoTrailer Park QualicumBay 66 66 9. CasaDel Mar Motel QualicumBay 4 9 13 10.Wavecrest Cottages QualicumBay 2 2 11.Sea Flame Beach Resort QualicumBay 3 3 12.Shady Shore Fishing Resort S/Bowser 7 7 13.La BellaVista Bowser 10 16 26 14.Bowser Bill's Bowser 4 68 72 15.Seacroft Resort Bowser 18 18 16.Mapleguard Resort Motel DeepBay 4 4 17.Deep Bay FishingResort DeepBay 3 85 88 18.Ship & ShoreMarine Campground DeepBay 14 14 19.Home Lake- Texada Home Lake 350 37 20.Spider Lake Springs SpiderLake 278 278 Total 455 823 1278
3.2.3 Industrial
Lightindustrial development occurs in a limitedfashion inthe Plan Area. Extensive industrialuses are more appropriately located on servicedland adjacent tolarger marketareas such as Parksville andNanaimo. Some gravelextraction activities for forestryand highway road maintenance occur inland form the Island Highway.
3.2.4 Institutional
The majorinstitutional usesin the Plan Area are the two communityhalls, two churches,school properties, firehalls and miscellaneous areas associated with the communitywater works (ie well locations). Federal and provincialregional ministryoffices and hospital services are located in the more urban areas such as
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Nanaimo, Parksville,Qualicum Beach and Comox, withthe exception of thetwo federally ownedfish hatcheries. These is also a lodgeproviding care for the elderly (Arranglen). Severalduplexes near Lighthouse Country Community Centre are managed by theQualicum Bay LionsClub for the elderly.Additional units are anticipated.
Resource Sector
3.2.5 Fisheries
Managementof sport and commercial fisheries iscarried out by federal(Fisheries and OceansCanada) and provincial(Ministry of Environment,Fish and Wildlife Branch) agencies.The federalgovernment regulates the numberof licensesfor fishing vesselsand determinescatch limits and/or permitted fishing days. It also fundsthe Salmonid Enhancement Program, which is a majorinvestment designed to increaseanadromous fish stocks to historiclevels. The two majorhatcheries within thePlan Area on theBig Qualicum and Little Qualicum Rivers are a partof thisstrategy.
The governmentwharf in Deep Bay,located in the only natural harbour in the Plan Area,offers moorage to bothsport and commercialfishing vessels. However, mooragefacilities areinadequate tomeet demands in the spring herring season and periodically inthe fall, with excess vessels anchoring inthe bay. Approximately 60 vesselsmay overwinteratthe wharf.
Itis difficult toestimate the value of the resource to the economy of the Plan Area. Both catchnumbers and the value of the catch vary yearly, and specificnumbers attributabletothe Plan Area only are not available.
3.2.6 AquaticResources
In termsof aquaticenvironments, thePlan Area is part of the eastern Vancouver Islandstream and riversystem that is highly valued for its salmonid production capability.Compared to most othercoastal areas of BritishColumbia where watershedsare in igneous rock zones that have low biologicalproductivity, the easternIsland has streams that are productive and cumulatively very important for the commercialand recreationalcatch of salmon.The RegionalDistrict of Nanaimocontains some of themost productiveanadromous fish streams in the provincewhere virtuallyevery permanent stream draining into the Straitof Georgiacontain populations ofone or more sea run fish. Of thesestreams, the Big and LittleQualicum Rivers are among themost highlyvalued for production of steelhead,coho, chinook, chum and pinksalmon. The FederalDepartment of Fisheriesand Oceans have developed substantial hatchery facilities on the Big and
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LittleQualicum Riversas part of the Salmonid Enhancement Program, designed to restoresalmon and steelhead stocks to their historic (pre 1900) levels. Both theBig andLittle Qualicum Rivers have significant investments inhatcheries throughthe SalmonidEnhancement Program. The Big Qualicumhatchery offers a controlledriver environment including flow volumes and temperatures,engineered rearingpools and settlingbasins, semi -naturalrearing channels, artificial spawning channel,hatchery facilities and marking facilities. Little Qualicum has a spawning channel forchum andspawning and rearing facilities (recently doubled in size) for Chinook. LittleQualicum raises some incidentalcoho in addition tothe chum and chinookand hasa naturalfishery outside of the hatchery which includes sockeye, coho,chum andchinook.
Allof thesmall streams with permanent flows also support anadromous fishes, eg Fletcher Creek- cohoand cutthroat trout; and, Nile Creek - coho,chum, steelhead andcutthroat trout.Most ofthese streams have problems with minimum flows due tothe low summer rainfall.Number offish returning to spawn are typically low, usually between0 and 100 cohoand chum. Some streamimprovement such a fry plantings andincubation boxes could improve fish numbers. Home Lakeis one of the moresignificant fishery lakes on theeast coast of the Island. As themain water sourcefor the Big Qualicumhatchery, retention of the shore line in a relatively undevelopedstate is preferable inorder to maintainthe high water quality required by thedownstream hatcheryfacilities. The lake is also an importantfish habitat in its own rightsupporting rainbow trout and naturalpopulations of cutthroat trout andkokanee. The smaller,warm lakesin the Plan Area, Illusion and Spider, offer a differentkind of sport fishing opportunity, namely small mouth bass.
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4. NATURAL ENVIRONMENT
The majorchallenge for the Shaw Hill- Deep Bay PlanArea residents and the Regional Districtisfinding an acceptablemix of naturalenvironment features and community developmentwhich will retain the natural amenities valued by thepeople and at the same timeallow controlled growth and development inappropriate locations.
The relativelysmall population ofthe Plan Area has in the past enjoyed the benefits ofthe naturalenvironment with ample water, coastal rural setting with relatively undisturbed forestsand natural resources. As more and more people move to VancouverIsland, Shaw Hill- Deep Bay willbecome more attractive forresidential settlement. Itwill be necessary totake more care in evaluating the sustainability ofthe natural environment toguide land useplanning inthe Plan Area.
4.1 EnvironmentallySensitive Areas
The OfficialCommunity Plan will identify Environmentally Sensitive Areas which require protectionfrom inappropriate landuse and environmental degradation. The planwill guide landuse and managementin a mannerwhich identifies environmentally sensitive features of allwatercourses, lakes, marshlands, and in some casesupland and forestareas possessinghigh biotic capability forflora and fauna.The planwill also identify hazard landswhere topography, unstable soils or potential forflooding or erosionmay causeloss of life,property or environmentaldamage due to inappropriateland use or vegetation removal.13
An areain which a human activitycan detrimentally altera habitat which is significant or criticalto particular flora or faunais considered environmentally sensitive. In some environmentscareful development and managementpolicies can mitigateor minimize impactsof development,however, in othercases any human interferencecan result in significantalteration ofthe environment. Sensitive habitats within the Plan Area have been notedon Map No. 3 of Schedule'A' ofthe Official Community Plan which designates theseareas as environmentally sensitive.
The mostcritical areas are those which are non -replaceablehabitat for a componentof a species'lifecycle. Included in thiscategory are estuarine and wetlandareas for their productivityand theirimportance as overwinteringareas for waterfowl. Also the Plan
13 In many casesmanagement policies must be designedfor the specific characteristics ofthe environment and demandsof a proposeddevelopment. The manualsinclude: "Guidelinesfor Watershed Management of Crown Lands used as Community Water Supplies", B.C. Ministry ofEnvironment; "A Handbookfor Forest and RoadsideErosion Control in British Columbia", B.C. Ministry of Forestry, Land Management ReportNo. 4; "GuidelinesforLand Development and Protection ofthe Aquatic Environment", Fisheries and Oceans Canada.
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Areaincludes sites which exhibit unique vegetation characteristics. Forexample, west of Deep Bay alongthe northerly most portion of the Plan Area is a representativestandof firstgrowth Douglas Fir/Grand Fir and Red Cedar.This ecologically sensitive siteis part ofa uniqueecosystem which is coincidentally overa majoraquifer inthe north end of the RegionalDistrict.
Thisarea, without protection will become more accessibleto competing forestry or agriculturalusesas it is in the vicinity ofa majorhighway intersection withthe new Island Highway.For this reason it should be a highpriority toretain this area as representative of the originalforest cover in the RegionalDistrict. This sensitive area extends into GainsburgSwamp andhas been identified by the Province as a candidateprotected area underthe Protected Areas Strategy.
The vegetationalong the shores of estuarine environments also has a particularimportance forits role in anadromous fish lifecycles (rearing and transportationroute to spawning areas).Ramifications from lossof habitatwould effect commercial and sportfishing activities.
Inthe marine environment, thesubtidal zone and in particular, areas of marine vegetation and saltmarshes (in addition to estuarinehabitats) are considered sensitive and usually requirespecific management practices tomaintain their viability.
On thelandward side, stream protection areas have been delineated toindicate zones in whichattention must be paidto waterquality concerns and protection offish habitat. A broadzone has been defined based on theextent of flood prone soils and bluffs paralleling thewatercourses. Careless development and landclearing in thesezones may destroy shorelinevegetation along creeks and rivers, weaken slopes, increase runoff and increase thethreat of flash flooding, erosion and stream sedimentation'''. Luckilythe Plan Area is blessedwith considerable Federal Fisheries ownership along the shores of Big Qualicum andLittle Qualicum Rivers, however stream protection should be a highpriority on all watercoursesinthe Plan Area on privatelyowned landwhich may be subjectto land clearingordevelopment. 15
The IntegratedManagement and HabitatManagement Divisions of the Ministryof Environment,Lands and Parksand theDepartment of Fisheriesand Oceansrecently
14 Streamsideclearing eitherfrom agriculturalactivities, forestry operations or urban development can affectstream water aquatic quality, habitatand fish population itsupports. Vegetation removal leads to loss of shading, causing increased summer temperatures,decreased water dissolvedoxygen levels and aquatic food production, a severe reduction instream bank stability leadingto increased erosionand sedimentloading, and acceleratedoverland runoff causing more pollutantsto enter the watercourse.(Source: Land DevelopmentGuidelines for the Protection of the Habitat, May 1992,Ministry of Environment Landsand Parks and Department of Fisheries and Oceans).
15 Onlya levelof low toxicityfrom variousagricultural chemicals, wood debris,nutrients, chlorine, or other substances is requiredto impair a river'squality for fish rearing. Inthe same mannerexcessive sediment loading can suffocate salmon eggs duringincubation or causeexcessive gill irritation to maturing fish. In many regards,these problems can be overcomeand satisfactoryaquatic environments maintained ifcareful land use practices arefollowed on shorelands and creekside properties.
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produced"Land Development Guidelines for the Protection ofthe Aquatic Habitat" (May 1992).This document provides land owners, developers and governmentagencies with some fundamentalguidelines to protect fish habitat from the damagingeffects of land developmentactivities. The Regional District, in cooperation with senior government agencies,is in the processof usingthese and otherguidelines to developplanning strategiesto protectgreenways, natural vegetation along stream banks, bluffs and watercourses.Strategies include implementing setbacks and establishingdevelopment permitareas in Official Community Plans. 16
4.2 Fresh Water
One ofthe primary concerns of residents of Shaw Hill- Deep Bay isthe protection and distributionofwater resources and new developmentinthe Plan Area. Some areasin the PlanArea have surplus water, whereas other areas appear to be moresusceptible tosupply deficits.Surface water and groundwater are also not totally independent of one another. Forinstance, during periods of low rainfall,groundwater flows are essential forrecharging riversand streams.In othercases, surface water charges aquifers. This inter -relationship suggeststhat both sourcesshould be managed conjunctively,when possible,since problemsmay arisewhen they are not.
The locationof majoraquifers corresponds to thedistribution of quadra sands 17 inthe PlanArea. Springs and seepage are found wherever quadra sands are exposed to cutbanks andseacliffs, andthe groundwater discharged bythem contributes substantially tothe flow ofrivers and streams during the summer months. Since the Quadra Sands and aquifers are notcontinuous within the Plan Area, the quality and quantityof waterresources must be carefullymanaged.
The natureof futuredevelopment and infrastructuremust be consideredin lightof potentialimpacts on domesticwater supplies. Rural and suburbandensities should be containedwithin areas where existing community water systems and infrastructureare available,andfuture water systems should be morecentralized andonly provided in areas wheresewage disposal and drainageinfrastructure areprovided in a mannerwhich does not degradeenvironmentally sensitive areas or thesupply of water.Land whichhad historicallybeendeveloped with suburban residential lotshave relied upon on-siteseptic
16 The retentionofa leave stripof sufficient width would isolate a stream from direct physical disturbance plus provide a dense canopyof vegetation along a stream;binding the stream band and soil (preventing erosion), moderating water temperatures and providingfood nutrients. The idealgreen strip would be preservedina naturallyvegetated , totally undisturbed state. However, undercertain circumstances, whereit is believed stream water quality will not be adverselyaffected, the green strip may be utilizedfor constructionof the minorhiking trails and landscaping toincrease the quantity oftrees and shrubs in the leave strip orfor permanent detention ponds. 17 CoastalSurvey of Canada, Bulletin 144, "Ground water Resources of the Coastal Lowland and AdjacentIslands, Nanoose Bay toCampbell River, East Coast of Vancouver Island". Department of Mines and Technical Surveys, Canada, 1966.
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disposalconnected to smallprivate community water systems18. Continuationof unplannedrural development and landclearing, particularly over the aquifers,may endangerthe very source of waterwhich existing residents rely upon. If the source of waterfor a proposeddevelopment isto be froma groundwatersource, the long term reliabilityofthe source of supply should be certified bya qualified professional engineer or geoscientistwith proven knowledge and experienceingroundwater development. Also BC Environmentrecommends the preparation of a hydrogeologicimpact assessment of thewater source development on thewater supplies ofexisting residential areas and any nearbysurface water resources. Planning for community water must also go handin hand withthe planning and long-term maintenance ofdrainage and sewage disposal, otherwise thecommunity may increasinglybefaced with the risk of contamination. 19
The availabilityof sufficient quality quantities of fresh water to supplyexisting rural developmentand WaterImprovement District needs has been expressedas a major concernin the Dashwood Area. Dashwood Improvement District may be forcedto drill deeperand deeper wells due tothe increased demands on theLittle Qualicum acquifer. The implicationsofresidential development on theDashwood WaterSystem as wellas privaterural wells in unincorporated areas, which may sharethe same aquifer, needs to be consideredfor future land use and infrastructure decisions atLittle Qualicum. A solution tothis may be theestablishment ofa regional system on theEnglishman River to supply theLantzville to Qualicum Corridor thereby limiting the impacts to theexisting ground watersource. This would also allow the management activities inthe Little Qualicum Watershedto focus on fisheries,recreation andforestry values.
Allland uses including residential development, industrial, agricultural, forestry and mininghave an impacton thequantity and qualityof surfaceand groundwater. It is essentialto direct land development for residential or commercial purposes is to those areaswhich have an adequatesupply of fresh water, where resource use does not impact on thewater quality, and where protected agricultural areashave adequate clean water to be fullyproductive. Both domesticand agriculturalwater sources must be plannedand managed with assurancesthat there will be no groundwateror surfacewater contamination.20 The PlanArea has considerable capability foragricultural andforestry
18 The patternof residential development in Shaw HillDeep Bay was largelyfocused along the coastal area east of the Island Highway.Fortunately most of the coastal suburban residential community has easy access to large reserves ofwater on quadra sandsaquifers and areserviced by CommunityWater Improvement Districts at Deep Bay,Bowser, Qualicum Bay, and Dashwood.
19 BC Environmentis responsible forlicensing the use of surface water in the Plan Area. The WaterProtection Act which was recentlyadopted (Bill 9 - 1995)is intended to foster sustainable useof water resources and for conserving and protectingthe environment.BC Environmentrequires that if the water supply to a proposedsubdivision isto be providedfrom a surface watersource such as a creek,lake or spring,then the long term reliability ofthat supply must be certifiedby a qualified professionalwith the proven knowledge and experienceof surfacewater hydrology. The hydrologicalreport should also confirmthat there will be no detrimentaleffect on thewater supply of adjacent properties orother users of the water resource whichincludes instream fisheries requirements. 29 Farmersare able to make a significantcontribution towards managing the aquatic resource. Since the over application of fertilizers,whether natural stock wastes or commercial products, usually end up in nearbywatercourses resulting inreduced
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developmentas wellas residentialand commercial development. These uses must be accommodatedin a compatiblemanner and notthrough competition for or depletionof thewater source.
A reportentitled Water Management in the Regional District ofNanaimo, Regional Issues and EnhancedManagement Opportunities 21 advocatesa regionalapproach to water resourceplanning which would provide a framework for addressing existing and potential watermanagement issues. The reportsuggests that there is an urgentneed to clarify agencyroles and responsibilities withregard to water resources planning system. Without clarityofrole or purpose, the existing inefficient deployment between municipalities, water utilitiesand individualusers over finite water supplies will worsen. Cooperation, collaboration,andthe development of partnershipsbetween all four levels of government arerequired to maintainthe long-term security of waterquantity and qualityin the RegionalDistrict.
4.3 DrainageManagement
Anotherissue which the community expressed concern for is the need to provide adequate drainagemanagement to all areas, and in particular,tothose areas which are developed at smalllot densities. As the density ofdevelopment increases, there is potential forthe storm waterrunoff to increase asa resultofthe development. Increased storm water run off may impactfish habitat and increase the risk of downstream flooding or erosion. Exacerbating theproblem, the reliance on septictile fields inthe Plan Area means that there is a long termrisk of contaminationof the drainagenetwork, groundwater and watercourses throughseptic system failure.
Stepsneed to be takento ensure that sewage disposal systems would be constructedand maintainedina mannerwhich precludes sewage from reaching the drainage network. This willrequire coordination with provincial agencies, including Ministry of Health,BC Environmentand the Ministry ofTransportation andHighways. The approvalof drainage forland development has traditionally beenthe responsibility ofMinistry ofTransportation and Highways,and approvalsare basedon incrementalevaluation of subdivision applicationswithout comprehensive drainage planning or management.For the most part theApproving Officer considers subdivision based on theefficiency ofroadway drainage foreach subdivision application andnot the probability orimplications offuture failures of dissolvedoxygen content and aquaticfood production, the use of these substances should be closelytied to the assimilative capacityofthe soil. Another cause of watercourse contamination isthe leaching of animal wastes from storage areas or stock impoundments,where such wastes are concentrated. Efforts should be made tocontain these wastes and prevent their entering thedrainage network. Likewise, feedlot operations should be wellremoved from fish bearing streams. Furthennore, livestock shouldnot be permittedunrestricted access to streams for watering purposes since this results inthe direct introduction intothe watercourseofstock wastes, as well as accelerating erosion and downstream sediment loading through streamband trampling. 21 WaterManagement in the Regional District, Regional Issues and Enhanced Management Opportunities, Regional Challenge and Choice,consultant report conducted for the Regional District ofNanaimo, Westland Resource Group, Brian Szuster, July 1995.
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septictile fields or contamination.BC Environment has been encouraging the Regional Districttoconsider more comprehensive storm water management planning and facilities priorto designating land for further development.
4.4 NaturalHazards
Naturalhazard areas include mapping units prone to flooding and steepslopes subject to massmovement. The following isa summaryof the issues related tonatural hazards which may existin the Plan Area and must be consideredinfuture land use decisions. Potential hazardareas will be identified inthe environmentally sensitive areas and hazard land map, (Map #3)in the Official Community Plan:
A numberof SuburbanResidential parcels along the waterfrontin theBowser and Dashwood are straddlingsteep wave -cutbluffs (30% to 60% slopes)composed of unconsolidatedsand. The combinationof terrestriallandform and marineerosion processeshas created zones that are prone to erosionand sudden mass movement. The communityhas expressed concern about the probability oflandslide, anda concernthat withoutbuilding permit approval, illegally sited structures may havebeen constructed in hazardprone areas.
The opencoast and the dynamic balance of erosion and deposition processes ofthe drift sectorsin the marine environment also pose limitations to major developments such as largescale marinas between Qualicum Beach and Mapleguard Point. Beaches and raised beachesare noted on Map No.3 ofthe Official Community Plan as they are natural hazard areas.
A majorlimitation to development occurs in locationswhere a combinationof soil characteristics,suchas poordrainage and fine texture, lead to low suitabilityforseptic tanks.Areas within the lowlands with a low suitabilityforseptic tanks are available throughMaps B.C.or forviewing at the Regional District 22. Specificmapping for the highlandareas is not available,but excessiveslope and shallowsoils over bedrock generallyresult inlow suitabilities.
The rivermouths and estuaries ofall the major rivers and creeks flowing into the Strait of Georgiaare prone to flooding. A combination of high incoming tides and heavy run-off may causeflooding ofthe adjacent low lyingshoreline and the delta areas. In addition, the valleybottom of the Little Qualicum River is also an areaof flood hazard as is the upper Big QualicumRiver delta at the west end of Horne Lake. Further inland two areason the BigQualicum River and Nile Creek are considered hazardous due to the steepness ofthe
entitled 22Map sheets "SoilsAffected by Flooding and/or Watertable" and "Soils" (for slope classes) Additional information on characteristics soil whichmay affectsuitability fordevelopment isavailable inthe map seriesnoted earlier (from Maps B.C.). Soildrainage, watertable levels and soil surface erosion potential areincluded.
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slopes(up to 60%) cutinto unconsolidated sandby thewater courses. Gullies are evident andthe slopes and brow are prone to erosion and sudden mass movement.
The highlandsand mountainsalso have numerous areas of potentialhazard. The steep slopesand theveneer of colluvialmaterial over bedrock makes theseareas sources of rockfallsand avalanches. An example of such an occurrenceisclearly visible atthe west endof Horne Lake adjacent tothe delta of the upper Qualicum River. Caution should be exercised,especially atthe northwest end of Home Lakewhere seasonal residences may bein danger from avalanches orflooding.
Seismicactivity isa potentialhazard to the Plan Area. Vancouver Island is located within Zone 3 ofthe Seismic Zoning Map. Zone 3 indicatesthe greatest risk of earthquakein Canada.The June23, 1946 quake,which was the most damagingin thehistory of WesternCanada with a magnitudeof 7.3on theRichter scale, had itsepicenter inthe vicinityof Comox, about 70 km from QualicumBeach. An eventof this magnitude is projectedtooccur every 300 years. 23
The ProvincialBuilding Code providesminimum standards which assure an acceptable levelof publicsafety by designingbuildings to prevent major failure and lossof life. Structuresdesigned inaccordance with the earth quake load provisions ofthe code should resistmoderate earthquakes without significant damage and majorearthquakes without collapse,although there may be some structuraldamage. However, this code isnot enforcedwithin Electoral Area 'H' in the past due to the absence of buildinginspection authority
4.5 Local Government Toolsfor Protecting the Environment
The MunicipalAct andother legislation provide important regulating mechanisms which couldbe used by the RegionalDistrict and ProvincialAgencies to protectthe Environment.Although these tools are available, notall of them arewidely used. The followingsummary of some ofthese tools is provided to increase community awareness andto encourage their consideration where appropriate. • RestrictiveCovenants
Restrictivecovenants are an agreementor a formof contract, whereby the landowner (andsuccessors) agree to abide by certainprovisions orto contact an agency(Usually bothBC Environmentand theRegional District) for approval before carrying out
23 Estimatesof earthquake probability arebased on a statisticalanalysis ofthe historical earthquake data (1899 to the present). An accurateprediction oftectonic activity isnot possible with such a shortperiod of record. Therefore, the data has been processedto estimatepossible levels of seismic activity inthe near future assuming a continuationofthe statistical pattern of pastyears. Based on an empiricalrelationship between intensity and groundacceleration, an intensity VIII earthquake is derivedfor the Plan Area. That is, an earthquakeofabout 6.2 on theRichter scale has a probablereturn period of 200 years. Even higherintensities may be anticipatedon ground that is somewhat unstable. The 100year return period earthquake has an accelerationamplitude of 9%, thuspossibility ofa moderate to a strongearthquake should be considered.
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works.The advantageof restrictivecovenants is that they are registered on the propertytitle, and theoretically,mandated on futureowners of land.In practice, restrictivecovenants are difficult to enforce. Civil litigation may be requiredto enact theterms of the covenant and it becomes difficult topursue litigation asthe damage to theenvironment caused by removalof naturalmaterials is oftencompleted and irreversible(although the Province may takemore stringentenforcement action in casesof seriouscontravention). Covenants are, however, valuable for advising and informingthe future owners on theenvironmental restrictions on a parcelwith the hopethat most people (through awareness) will comply. Covenants may be added when landsare subdivided, rezoned, developed pursuant to a developmentpermit, or atthe initiation ofthe landowner.
• TreeCutting Bylaws
The RegionalDistrict may consideradopting tree cutting permit bylaws to protect areassusceptible toerosion or hazardous terrain, orto protect property from flooding conditions.This option has not beenconsidered within the Plan Area sincethe MunicipalAct introduced the Tree Cutting Permit provisions in1986. Implementation by the RegionalDistrict would requireadministrative and political support for identifyinganddesignating treecutting permit areas through bylaw. • DevelopmentPermit Areas
A greaterdegree of controlof developmentmay be possiblewith designation of developmentpermit areas in the OfficialCommunity Plan. Through development permitsprovisions can be enactedto protectspecific shores and rivers, streams and otherunique sensitive habitats and hazardous lands. However, this may be limitedto controlof new developmentand may be difficultto apply retroactively to existing residentiallands. Development Permit Area designations inthe Official Community Planmay be a veryeffective way of establishingthejustification and guidelines for more specificconditions which would have to be met priorto developmentpermit beingissued for constructionon, or alterationof land which may include environmentallysensitive orhazardous lands. • BuildingInspection
Buildinginspection isintended to regulatethe construction, alteration or repair of buildingsand structures forthe health, safety, and protection ofpersons or property. The authorityforbuilding inspection isan effective tool to assure buildings arebuilt to thestandards of theNational Building Code of Canada,the Health Act, the Fire ServicesAct, and with zoning regulations.
Wherethere is building inspection authority, thebuilding inspector has the discretion torequire an ownerof land which is subject toflooding, mud flows,erosion, land slip, rockfallsand other hazards to provide a report certified bya geotechnical engineer that
Page27 Shaw Hill- Deep Bay OfficialCommunity Plan Background Report
theland may be usedsafely for the use intended. At the time of preparingthis plan, onlythe portion of the Plan Area within Electoral Area "G" isincluded ina building inspectionarea. There is no buildinginspection inElectoral Area "H" andthis area facesa greaterproblem of enforcement when buildings do not comply with the zoning bylawsince illegal construction isnot detected due to a lackof mandatory inspection. Infact without building inspection authority, a "stop work order"cannot be issued by anthe Regional District and the community ends up payingmore when enforcement is pursuedthrough costly legal court actions..
Residentswho participatedinthe focus group meetings for Qualicum Bay, Bowser and Deep Bay indicatedgeneral support for building inspection especially in more concentratedresidential areas and alongthe coastline and watercoursesthat include hazardousshoreline bluffs and erosion features. There were also suggestions to make buildinginspection more convenient and accessible tothe community. One suggestion was to locatea sub-officein thePlan Area where a buildinginspector would be availablepart time to receive applications. (An unfounded but common perceptionin thecommunity, expressed at thefocus groups by residentswho opposebuilding inspection,is the notionthat building inspection would preventtemporary accommodationon a propertyin a buildingor trailerwhile constructing a principal residence.The RegionalDistrict infact provides temporary occupancy permits to allowan ownerto occupya buildingwhile construction of the principal dwelling is carriedon site).The greatestadvantage of buildinginspection isthat it assures that constructionisconducted in accordance with the building code and in compliance with zoningregulations. Without building inspection, buildings are often constructed ina mannerwhich may be illegalpursuant to thezoning bylaw or whichis susceptible to propertydamage. It is therefore highly recommended that the building inspection functionbe consideredfor the entire Plan Area provided there is support from the community..
AmenityBonusing - Section963.1 Municipal Act
A relativelynew clause in the Municipal Act allows local governments to providefor densitybonuses to a landownerin circumstanceswhere the owner dedicatesor protectsa natural feature that the community considers asan "amenity". Such a system ofbonusing has the potential ofencouraging land owners proposing development to setaside amenities (which may includeimportant natural areas) with minimal public expenditure.
Returnto Crown
Largerdevelopments could be susceptibleto provisions of the MunicipalAct regardingreturn of portions ofthe land to the Crown for park, conservation, roadway, orother purposes. Inclusion ofthe bank of creeks and rivers (and creek beds and the bottomof lakesand riverswhere applicable) could provide greater protection. The
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RegionalDistrict has the jurisdictionto require return to crown parklandfor communitypark purposes. Return to crown to protectgreenways along watercourses requiresinitiative from Ministryof Environment,Lands and Parksthrough the subdivisionreview process.
• OutrightPurchase or TitleAcquisition
Purchaseof sensitivelands by regional,provincial orfederal governments, as well as non-governmentorganizations (or privatedonation of landsfor environment protectionpurposes) may in some casesbe the only way of protectingan environmentallysensitive feature on privatelands where acquisition would be inpublic interest.
• Education
The roleof education ininforming landowners of the impact of their activities should not be underestimated.In the currentclimate of environmentalawareness and activism,a higher profile for wildlife, fishhabitat and riparian areas could be generated by Schools,local fish and game and/ornaturalist societies and otherorganizations in associationlocal government, fisheries staff and otherorganizations such as the CanadianWildlife Service.
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5. Resource Uses
Thissection will review the major resource uses within Shaw Hill- Deep Bay,including: Agriculture,Forestry, Mining and Fisheries. Each of these uses contribute significantly to theeconomy of the Region and requires careful management to assurecompatibility with surroundingland uses and the environment and where applicable, sustainability.
5.1 Agriculture
Althoughagriculture played a rolein the early settlement pattern of the Plan Area (See section2.3 which discusses early European Settlement and VancouverIsland Fruitlands) andhas been an important activity on the east coast of Vancouver Island, ithas not played a dominantrole in Shaw Hill-DeepBay. Most farm holdings are small, partly because of thescattered distribution ofproductive soils in the coastal lowlands and the trend toward smallerholdings more suitable forretirement andhobby farming
Most landswith high capability foragricultural use have been designated Agricultural Land Reserve(A.L.R.) 24. They aresubject to theprovisions of the Agricultural Land CommissionAct which is regulatedby the BritishColumbia Agricultural Land Commission.The Commissionis the principal agency responsible forregulating both the use and subdivisionof A.L.R. lands. The RegionalDistrict continues to supportthe mandateof the B.C. Agricultural Land Commissionfor preservation ofagricultural land andits development for food production and recognizes A.L.R. Lands as environmentally constrainedandnot appropriate fornon -farmdevelopment.
The AgriculturalLand Reserve(A.L.R.) has and willcontinue to havean important bearingon landuse patterns within the Plan Area for several reasons. First, approximately 20 % of thetotal Plan Area is classified as A.L.R. Second, a largeproportion of the A.L.R.Lands are protected for future agricultural useand remainundeveloped. Third, agricultureisboth a primaryand secondary source of income for some residents.
The majorblocks of A.L.R. lands are in the southeastern partof the lowlands, between the Littleand Big Qualicum Rivers. Three other large blocks are located in Qualicum, Bowser and Deep Bay.Much of theland in the A.L.Rand otherlands with capability for agriculturearelocated within Provincial Forest Reserves or parcels privately held by major loggingcompanies. This overlapping offorestry uses on landswith agricultural potential partiallyaccounts for the relatively lowacreage in actual agricultural useand the restricted
24 The distributionof high capability agricultural lands is shown on ConstituentMap Nos.1, 2, 3,4 and 5 throughALR boundariesavailable atthe Regional District. The soilsdeveloped on marineparent materials orthe finer textured fluvial and fluvial-glacialmaterials have the highest improved capability ratings. Many ofthe fluvial and fluvial -glacialsoils are too coarse texturedfor extensive agricultural use.While areas of high capability (C.L.I. Classes 1 and 2) arenot common, there are large areaswith improved ratings of Classes 3 and 4. Classes improvable to1 to4 aregenerally included within the A.L.R.; Classes 5 to7 havetoo many limitationstosustain most agricultural uses.
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use ofthe A.L.R. designation in marginal lands (i.e., Class 5 improvableto Class4). Althoughthe intent of theplan is that farm units be retainedat their present size or expandedthrough lot consolidation (thus making them more economicallyviable), itis alsorecognized that existing small scale farm operations play an importantrole in society. Not onlydo theseoperations provide a countrylifestyle, butholdings could in turn be utilizedforgreenhouse operations, market gardening, orchards and other labor intensive farmactivities which are less likely tooccur on largerfarm holdings. However, due to the highfrequency ofsmall acreages which already exist in the Shaw Hill-DeepBay Area(5 - 20 acres),future subdivision ofland for small scale farms should only be permittedon isolatedpockets of unimprovedland well removed from activefarming areas. The provisionfor small size farm parcels within the Agricultural Land Reserveis conditional uponthe consent of the Agricultural Land Commission.
Whilethe regulations governing the A.L.R. largely ensure the protection of arable soils, problemsstill develop on the interfacebetween urbanizing areas and agricultural communities.These problems are usually associated with possible unreasonable odours, noiseor othernuisances. In many casesproblems may be minimizedby properfarm managementtechniques. Inother cases there needs to be protectionforfarmers and their investmentswhile at the same time considering theneeds of non -farmresidents.
Recentlythe Provincial Government adopted the Farm PracticesProtection (Right to Farm Act) which provideslegislative protection to farm operationsand provides exemptionsfor farm operations tocertain local restrictions (suchas a nuisancebylaw) but atthe same time establishes a panel for hearing and resolving complaints related tothe use of agriculturalland.The MunicipalAct has also been amended to provideDevelopment PermitArea provisions forprotection offarming and also now requiresapproval from the ministerunder the Farm PracticesProtection (Right to Farm) Act for any prohibitions or restrictionsrelated tothe use of land for a farmbusiness ina farming area.
5.2 Forestry
A majorportion of theland base in the Plan Area is managed for forestry purposes. However,given the multiplicity of private forest land ownership in thePlan Area, a sustainedyield has historically beendifficult to achieve 25. As thecoastal lowland within
25 Sustainedyield is achieved when "thesame volumebeing harvested asthe forest is capable of producing in any given time period"(BC Forests).Itshould be notedthat the Ministry of Forests is the principal agency responsible foradministering the ForestryPractices Code whichalso applies to private forest lands. The RegionalDistrict supports the F.L.R. and the Forestry PracticesCode whichtogether encourage sustainable management of the forest resources within Shaw Hill- Deep Bay.All landin theF.L.R. have been recognized as environmentallyconstrained by the Regional District. A legacy of the E. & N. Railroadland grant is the high proportion ofprivately held forest lands compared to Crown lands under Forest Reserve, which hadto be re-acquiredby theCrown. Under Section 943(2) of the Municipal Act a localgovernment cannot enact any policies whichwould restrict forestry management and harvestingactivities on land classified as managed forest land under the AssessmentAct or land located in a licensearea under the Forest Act so long as the land continues tobe usedonly for forestry purposes.
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thePlan Area was developedfor suburban residential and farmingpurposes, loggers turnedtheir attention tothe more mountainous upland slopes and otherforest lands. These landshave a highcapability forforestry and are particularly valuable because they support themore desirabletree species (Douglas -Fir,Cedar, Hemlock). Over the last eighty years thePlan Area has been extensively logged and the area is now characterizedby 20-30 year oldsecond growth forests. Although initially exploited with little thought given to the future,today new energieshave been directed towards integrated resource use and sound environmentalpractices so as to ensurethe forest will still be producingfor future generations.
The ProvincialGovernment has recently introduced the Forest Land Reserve(F.L.R.) pursuantto theForest Land CommissionAct and theForest Practices Code. The B.C. Land Commissionis responsible foradministering applications forexclusion, non-forestry use,or subdivisionofF.L.R. Lands. This F.L.R. designation applies to managedprivate and publicforest lands (interim F.L.R. boundary maps are availableat theRegional Districtfor viewing.) The F.L.R.designation generally include lands classified Class 7 ManagedForests in the Assessment Rolls.
5.3 Mineral,Aggregate and Hydrocarbon Resources
Itis appropriate to separate mineral, coal and energy resources from aggregateresources suchas sandand gravel,as theMinistry of Energy,Mines and PetroleumResources mandateis different forthese two broadcategories. The Ministry's powers for both tenure and operationstandards are more comprehensive when dealingwith mining issues than it iswith aggregate resources.
5.3.1 AggregateResources
Governmentauthority with respect to aggregateresources isdivided between two agencies:
• The tenuringof aggregate resources on Crown landsis the responsibility ofBC Landsunder the Land Act.
• The technicalmanagement of aggregatedevelopment is the responsibility of theMinistry of Energy, Mines and Petroleum Resources pursuant to the Mines Act.
The Ministryof Energy, Mines and Resourcesmandate with respect to sandand gravelresources on Crown landand privateland is limited to permittingfor public/workersafety, environmental considerations and reclamation.In other words,for sand and gravel, the Ministry deals with the "how to operate"question, not"whether to operate".
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Graveland sandsuitable for concrete aggregate and roadbuilding isabundant in many partsof thePlan Area. Substantial areas of moderatelyhigh potential for aggregateresources have been identifiedon reconnaissancescale mapping (1:50,000)and areavailable for viewing through the Ministry of Energy,Mines and PetroleumResources. These maps are availablethrough the Ministry. Generally,the locations with high potential for aggregateresources are from CameronLake along Little Qualicum River, from the eastern end of Home Laketo the areasurrounding Spider and IllusionLakes and scattereddeposits in the uplandsalong the Big QualicumRiver and large deposits between the 90 and150 metrecontours north of Thames Creek.
5.3.2 MineralResources
MineralResources are regulated, managed and tenured by theMinistry ofEnergy, Minesand PetroleumResources under the Mineral Tenure Act (for tenure) and MinesAct (for exploring and mining).
Thereare a numberof mineraloccurrences within the Plan Area, concentrated in thearea south of Mount Mark.This area and otherswithin the Plan Area can expectto be subjectto mineralexploration activity well into the future. Informationon mineraltenures can be obtainedfrom the Gold Commissioner's Officein Nanaimo. Limestone and claydeposits are also found within the Plan Area.The Ministryof Petroleum, Mines and Resourceshas suggested that these sourcesmay becomeviable for cement operations inthe future.
5.3.3 CoalResources
Coal resourcesare managed and tenuredby Ministryof Energy,Mines and PetroleumResources under the Coal Act (fortenure) and Mines Act (for explorationand mining).
Generally,coal potential inthe Shaw Hill- Deep Bay PlanArea is considered poor.Although coal -bearingformations extend considerable lengths along the east coastof Vancouver Island, from Duncan to Campbell River. The PlanArea is just southof an areaunderlain by higher concentrations ofCretaceous units that is coal bearingstrata. This coal bearing strata extends from Cowie and WinfredCreeks (locatednorthwest of the Plan Area) to Courtenay and Cumberland. 26
26 Therewere no licensesfor coal exploration ormining in the Plan Area at the time this report was prepared.
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6 TechnicalReference to Background
6.2 PhysicalFeatures
Thissection describes the geologic processes and physical conditions ofthe Plan Area and providesa brief description ofthe origins ofthe landforms.
6.2.1 Terrestrial
Physiographically,themost accessible anddeveloped part of the Plan Area is part ofthe Nanaimo Coastal Lowland which extends along the east side of Vancouver Islandfrom Jordan River to Sayward. To theeast lies the Strait ofGeorgia and to thewest, approximately atthe 212 m contour,lies the eastern flank of the Beaufort Range,part of theVancouver Island Mountains. The Lowlandis underlain by sedimentaryrock surfaces which were stripped ofweathered material and shaped by severalepisodes of glaciationduring the Pleistocene period. The overriding sheetsof ice further reduced the low reliefby the deposition ofa mantleof glacial andfluvio-glacial materials varying between 10 m and90 m indepth. The weight of the icealso depressed the landbelow sea levelwhich resulted in some depositionofmarine -modifiedmaterials aswell. When theglaciers began to recede over12,000 years ago theland surface rebounded leaving marine and shoreline features,such as beach deposits, atconsiderable distances from existing sea level. Watercourseswere also rejuvenated resulting inthe cutting of steep narrow -sided valleysalong the courses of streams and the Big and Little Qualicum Rivers.
Furtherinland, the part of the Plan Area above the 240 m contouris composed of sedimentary,volcanic and graniticrock surfaceswhich have been maturely dissectedby valley glaciers and streams. These form a broadhighland reaching a maximum heightof 1548m atMount Joan,although general summit levels are morecommonly at the 910 m to 1060m level.The mountainsare actually high pointson ridgecrests or the upperpart of broadtopped ridges, with the encroachmentby formercirques and river valleys carving some steepslopes and peaks.The valleysare typically narrow, steep -walledtroughs shaped by glacial erosionwhile the steeper tributary valleys are V-shaped. The valleyoccupied by Home Lakeis part of a largerstructural depression although italso owes its form toice movement.
The presenttopography of the coastallowland band, 5-13 km wide,is characterizedby a gently undulating surface with local relief generally less than 30 m. The majortopographic variations occur in the river and stream valleys where waterhas erodedthe thick mantle of overburdeninto valleys which become progressivelyshallower asthey near the sea. There are several low lying areas such asthe headwaters marsh of Fletcher Creek.
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An intriguinggeological feature that occurs in the mountainous part of thePlan Areais the limestone solution caves that are contained within Home Lake Caves ProvincialPark. These types of caverns and other features of Karst topography are foundin several places on Vancouverisland (e.g. west of CampbellRiver, Gold Riverarea) that have limestone asthe bedrock.
The recentgeological history described above has resulted in a complexof soils developedon glacial,fluvio-glacial and marine parent materials. The finetextured marinesoils can be foundup tothe 136 m contour,the approximate limit of the marineinundation. Above themarine soils in elevation, and alsounderlying the marinedeposits are the glacialdeposits. Fluvial and fluvial-glacialdeposits, associatedwith the river systems and oftenoverlying both the marine and glacial deposits,are generally coarser textured and better drained. Minor areas of organic soilshave developed inlow lyingareas with restricted drainage.
6.2.2 Marine
Whileinland physiography isgenerally viewed as essentially static, the coastal zone in contrastis an areaof constant,dynamic visible change where physical and biologicalprocesses are powered by lunar, solar and gravitational energies. Waves, tides,currents and inflowingrivers alter the water -landinteraction zone through theprocesses oferosion, transport and deposition.
The shorelineofthe Plan Area is part of a beachbelt that stretches 203 km from MadronaPoint (Nanoose) north to Duncan Bay. There are no outcropsof bedrock asthere are along the coast south of Madrona Point. It is a longshore drift belt in whichthe currents flow from the southeast tothe northwest. Itis broken into three driftsectors, each comprisedof interdependentareas of erosion,intermediate accretionand terminalaccretion shoreforms. The mouth of theLittle Qualicum Riveris at the western end of a driftsector which starts at Craig Bay. The strong westwarddrift of beach material has deflected the course of the river at its mouth paralleltothe shoreline. The depositionalforces have combined to form a barrier spitmodified by deltaicdeposits and estuarine processes. There are flood hazards in the deltaand alongthe riverbottom (floodplain). Limitations include poor drainageand a highwater table in theold alluvial terraces, fans and morainal deposits.There is some shorelineerosion west of the spit tip.
The shorelinefrom the mouth of the Little Qualicum to theBig QualicumRiver comprisesanother drift sector composed largely of intermediate accretion beach shoresof graveland sand.The beachberms along a broadarea of D.L. 89 and adjacentD.L. 80 and 81 arebacked by 18 to 30 m highgullied banks of sandy fluvio-glacialterrace and gravelly banks and bluffsthat are erosion prone. At the accretionterminal, near Qualicum River, the beach becomes broader and sandier.
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The mouthof the Qualicum River cuts through the confines of the heavy gravel accretionberms of thedrift sector to theeast. The channelgradient and heavy gravelbed loadhas preventedthe developmentof estuarinemarshes and the formationof a more physicallyand biologicallycomplex estuary. The deltaarea and thefloodplain along the river may be proneto floodingat occurrencesof stormtides and highriver floods. High water table problems occur during winter monthson adjacentalluvial terraces and old fans.
The coastfrom theQualicum River to thetip of the MapleguardPoint forms a single,lengthy (12.2 krn) drift sector. The shorematerial of thissector is high in coarsegravels, cobbles and bouldersalthough sandier sections are present near NileCreek. Nile and Thames Creeksare too smallto createsignificant drift barriers.Their mouths can be temporarilyblocked during extreme high tide and stormwave occurrences.Gullying along the creek banks, seepage and possible floodingare limitations around the creek mouths. There are several areas where foreshoretrenches have been dug to createboat accessin frontof private residencesand beach protection works (bulkheading) have also been attempted in severalplaces. These measuresare meant to impede the slow intermediate accretion/erosionprocess and willlikely initiate localized beach disturbances that willlead to further erosion problems. Some areasof the backshore in D.L. 36, 40 and85 arecomposed of actively gullying morainal bluffs.
6.3 Hydrology
The PlanArea has two majorrivers, the Big and Little Qualicum Rivers. Part of the Little QualicumRiver (10.2 km) and itstwo majordownstream tributaries, Whiskey and KincadeCreeks, drain the southeastern part of thePlan Area. All of theBig Qualicum Riveris within the Plan Area, draining much ofthe mountains and the central part of the coastallowlands. Together with its tributaries andHome Lake,the river forms the largest watershedin the Plan Area. Other permanent watercourses draining the lowland are Nile (11 km) and Thames(8 km) Creekswith source areas in the highlands, Fletcher Creek withits source in a largemarsh and Cook (Chef) Creek which drains into Deep Bay.All otherstreams are intermittent.
Maximum streamflows occur during winter and springwith many ofthe smaller creeks (e.g.Thames) experiencing low summerflows due to the small local rainfall. Basal flows areoften dependent on groundwateror on run-offfrom the precipitation ofthe highlands. The BigQualicum has outflow controls on Home Lakein order to regulate water volumes andtemperatures forthe large hatchery facility downstream.
Spiderand Illusion Lakes are part of an encloseddrainage system with no surfaceoutflow streams.Groundwater flows are the major source of water exchanges in the small shallow lakes.They are very sensitiveto contaminationand pollutionwhich would cause
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accelerated eutrophication (the natural aging process of lakes which results in high levels of aquatic vegetation) and loss of their recreational capability and appeal.
Groundwater resources sufficient for community water supplies are known to exist in the Quadra sands.27 Other materials of direct or indirect glacial origin also have some capabilities, although they are largely unknown at present. Fractured rock in the upper elevations also offers some opportunities for domestic water supply.
6.4 Terrestrial Habitat
The Plan Area is part of a highly productive biotic region that extends along the eastern Vancouver Island Coastal Lowland. The mild climate, especially the long, warm thy summers has enabled the development of the dry Douglas-fir sub-zone near the coast while most of the inland portions are part of the Coastal Douglas-fir biogeo-climatic zone (CDF). The dominant association below the 485 m elevation is Douglas-fir with salal and oregon grape in the under-story. Above this elevation the Coastal Western Hemlock biogeo-climatic zone (WH) dominates, often in association with amabilis fir. Western red cedar is common on wetter sites. The coniferous associations are quite dense being largely composed of second growth forests with a thick shrub layer as large areas along the coast were logged within the last 50 years. Major logging operations, part of long range forest management programs, are still being carried on further inland as the forests are among the most productive in B.C.
This part of the east coast of Vancouver Island is also a high capability deer habitat (C.L.I. Class 3 for ungulates). The cut areas can support large deer populations due to ample browse although adequate cover is often a limiting factor in large clear cuts. The intermediate slopes between the 750 m and 150 m elevations, and especially the south- facing slopes with well established forest cover, are the preferred winter ranges (C.L.I. Class 2 and 3; see Map No. 1). Intensive forest management practices, e.g., stand thinning, often produce very good results in terms of deer habitat, thus wildlife management activity and forest management will likely take place in similar areas. The east central part of the Island provided excellent deer range and was popular with hunters until logging occurred in the late 1960's and early 1970's. The objective of provincial wildlife biologists is to increase the number of deer hunting opportunities in the region to 1960's levels using intensive forest management activities throughout the area. The appearance of deer in settled areas is not uncommon with gardeners regularly resorting to use of deer fences.
A variety of other animals and birds are also found throughout the inland area, e.g., black bear, cougar, wolf and small furbearers although they are seen relatively infrequently.
27 Springs and seepage are found wherever quadra sands are exposed in cutbanks and sea lifts and the groundwater discharged by them contributes substantially to the flow of rivers and streams during the summer months. Quadra sands are not continuous within the Plan Area.
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Little background data or management information is available for these species although it has been noted that wolves are becoming more numerous in the northern and central portions of the Island.
6.5 Coastal Wildlife
As part of a dynamic and diverse shore-process corridor, the Plan Area's physical elements are matched by equally diverse biological components. The long drift sectors, the erosion and accretion forms, estuaries and marshes support a wide variety of marine life forms including those that use the land and water transition zones. The more prominent and visible members of the coastal biotic community are discussed below.
The entire offshore habitat of the Plan Area is extensively used by overwintering and migratory waterfowl (C.L.I. Class 3m). Certain small productive areas such as estuaries and marshes are very important for feeding and resting, e.g., Deep Bay, Big and Little Qualicum estuaries, and the Fanny Creek marsh. The Little Qualicum is an extremely diverse habitat representative of a typical small delta/estuary complex. The Canadian Wildlife Service has established the Marshall-Stevenson Unit, part of the Qualicum National Wildlife Area, on a 54 ha section of the north part of the Big Qualicum estuary spit. Geese and diving ducks are present year round with dabbling ducks and a few trumpeter swans present during the winter.
At the north end of the Plan Area, Deep Bay supports several species of dabbling and diving ducks, divers and gulls and trumpeter swans. Dabbling and diving ducks and divers utilize the lengthy intervening coastal area. Normally species include: dabbling ducks - mallards, pintail, widgeon, teal; diving ducks - scaup, golden eye, buffle head, harlequin; and divers - loons, grebes, mergansers. Shorebirds (sandpipers, plovers, dowitchers), herons and raptors such as the bald eagle and osprey are also frequently seen in the area.
The inter-tidal and sub-tidal areas ofthe coast support a variety of shellfish, such as clams, oysters and crabs. There are considerable variations in the availability of shellfish along the coast between the Little Qualicum estuary and Mapleguard Point as most of the near shore portions of this long drift sector are intermediate erosion/accretion forms, not all of which are suited to abundant shellfish growth. Qualicum Bay is a reasonably productive and popular recreational shellfish area; the Nile and Thames Creek areas are also relatively productive with smaller pockets of shellfish beds occurring along the coast. Little detailed survey work has yet been done. In contrast, the Deep Bay area is highly productive for shellfish because of the sheltered waters and abundant nutrients.
The offshore areas are frequented by both harbour seals, especially around Deep Bay, and overwintering sea lions. Some productive herring spawning areas lie about 1 km offshore. This is part of a long, almost continuous bed of eelgrass that extends from Northwest Bay
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into Baynes Sound. It is an extremely important habitat area for the commercial herring fishery even though the use varies by year and by location along the coast.
The coastal waters also provide habitat for one of the most significant resources of the east coast of the Island - anadromous fishes. As well as the important estuary habitats described below, it has been shown that the near shore areas of the coast are critical for juvenile migrating salmon because of the food, cover and protection from predators afforded by the relatively more productive near- shore waters.
Five species of salmon and steelhead produced in the Plan Area's rivers and streams spend most of their adult lives in the Strait of Georgia where they provide the livelihoods for commercial fishermen and tourist operators through commercial and sport fishery. Salmon fishing has long been one of the major recreational activities of both visitors and residents and is one of the aspects that contributes to the quality of life in the Plan Area.
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7. Appendix I - Climate
The Plan Area has a maritime climate which is strongly influenced by its position in the rain shadow of the Vancouver Island Mountains. The result along the coastal strip is a temperate climate, which is relatively dry for its maritime location, with gradual seasonal changes from mild, wet winters to warm, dry summers. Further inland, as the elevation and proximity to the Island Mountains increase, the climate is cooler and wetter.
For coastal areas, the warm season usually starts at the end of April, when daily maximum temperatures are over 18°C, and extends into October, providing a long growing season and a long outdoor activity season. A typical summer day will reach temperatures over 23°C. During occasional hot spells, 30°C temperatures are reached. Rainfall is usually less than 4.5 cm per month in the summer.
Winter conditions are mild by most Canadian standards. Mean daily temperatures are a few degrees above zero, and the majority of total precipitation is rain, with some cold spells and snow likely in December, January and February.
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8. Appendix II'
Table 6.1 Summary of Services and Protection
Service Name Location Community Hall Royal Canadian Legion Bowser Lighthouse Community Centre Qualicum Bay Churches Wildwood Community Church Bowser Island Gospel Centre Bowser
Library Vancouver Island Regional Library Qualicum Beach Union Bay
Education Bowser Elementary Bowser
Health Care: Medical Clinic Bowser Medical Clinic Bowser
Hospitals St. Josephs General Comox Nanaimo Regional General Nanaimo
Extension Health Central Vancouver Island Health Unit Parksville
Ambulance Station at Qualicum Bay Fire Hall Qualicum Bay
Elderly Care and Housing Arranglen Lodge Corcan-Fowler Arrowsmith Parksville Trillium Parksville Lions Club; 5 duplexes Qualicum Bay
Poison Control Centre None in Plan Area Nanaimo
911 911 Service expected to be available in 1996 Plan Area
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9. Appendix III
Shaw Hill - Deep Bay Plan Area Vacancy and Population Estimates
September 1989 September 1995
# of Residential Parcels 1726 1774
# of Vacant Parcels 437 315
% ofParcels Vacant 24% 17%
Estimated Census Population 3207(1991 Census) 3690 (Estimated 1996)
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