Official Community Plan
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Savary Island Official Community Plan
Draft For Discussion Purposes
NOTICE TO PROPERTY OWNER:
This "draft" copy of the proposed Savary Island Official Community Plan (OCP) is provided for your information. It has been prepared by Planistics Management Inc., in consultation with the Savary Island Committee (SIC) and based on earlier public comments received.
Three public meetings are to be held on Savary Island over the summer to discuss the plan and you are urged to attend or otherwise make your views known. Following these meetings a recommendation on the draft OCP will be submitted to the Powell River Regional Board. [Refer to the back page for meeting dates].
Note: This mail out has been paid for by the Powell River Regional District as part of their support for community plan on Savary Island. Savary Island Official Community Plan
Table of Contents
Page
Section 1 Introduction and Community Goals ...... 1 1.1 Introduction ...... 1
1.2 Principal Aim and Major Goals ...... 3 1.3 Community Plan Objectives and Policies ...... 4 Section 2 Environmental, Marine and Heritage Resources ...... 5 2.1 Environmentally Sensitive Areas and Hazard Lands ...... 5 2.2 Marine Resources ...... 7 2.3 Heritage Resources ...... 10 Section 3 Residential Use ...... 10 3.1 Residential - General ...... 12 3.2 Rural Residential ...... 14 3.3 Community Residential ...... 14 3.4 Rural ...... 14 3.5 Comprehensive Residential ...... 15 Section 4 Economic Development Activity ...... 16 4.0 Commercial General ...... 16 4.1 Local Commercial ...... 16 4.2 Service Commercial ...... 17 4.3 Visitor Commercial ...... 17 4.4 Industrial Development ...... 18 4.5 Temporary Commercial and Industrial Use ...... 18 Section 5 Institutional Uses and Open Space ...... 19 5.1 Institutional Uses ...... 19 5.2 Island Open Space ...... 19 Section 6 Transportation and Servicing ...... 20 6.1 Land Transportation ...... 20 6.2 Water Transportation ...... 22 6.3 Air Transportation ...... 23 Section 7 Servicing Provision ...... 23 7.1 Water Supply ...... 23 7.2 Sewage Disposal ...... 25 7.3 Solid Waste and Hazardous Material Management ...... 26 7.4 Fire Protection ...... 27 Section 8 Development Permit Areas ...... 28 8.1 Development Permits for Protection of the Natural Environment ...... 28
List of Figures
Figure 1 Savary Island Planning Area Boundaries ...... 2 Figure 2 Transportation Map ...... 21
Other Schedules (attached to Schedule A)
Schedule B Official Community Plan Map (Land Use Designations) ...... centre Schedule C Development Permit Areas ...... 29
Cover Source: Sunny Sandy Savary, Ian Kennedy, 1992. Savary Island Official Community Plan
Section I Introduction and Community Goals
1. 1 Introduction
The Official Community Plan (OCP) sets out a vision as to how the Savary Island community wishes to evolve in the future. The Plan sets out the community's goals, objectives and policies regarding land-use, future development as well as social and environmental considerations applicable in the planning area. The purpose of the plan is to provide direction to government agencies, businesses and private land owners concerning future land use and the provision of services. Figure 1, on the next page, shows in map form the extent of the Savary Island planning area covered by this community plan.
Legislative Authority
The Powell River Regional District (PRRD), like all other local governments in BC, receives its legislative authority to prepare community plans, through the provisions of Section 875 of the Municipal Act (the Act). Section 883 of the Act states that a community plan, in a rural area (such as Savary Island), becomes an "official'' community plan once it has been adopted as a bylaw of the Regional District. Prior to adopting an Official Community Plan bylaw the PRRD must:
take the proposed community plan to a public hearing so persons who deem they or their property may be affected by the plan may have an opportunity to comment on the plan; and
receive the approval of the Minister of Municipal Affairs and Housing.
Section 877 of the Act stipulates what a community plan may contain. An OCP provides a series of statements and map designations respecting:
residential development requirements over a period of at least five years; the requirements for commercial, industrial, institutional, recreational and related uses; restrictions on development in hazard lands or in environmentally sensitive areas; the requirements for roads and other services the need for parks and other public facilities
The Act also permits a community plan to set conditions under which temporary commercial uses may or may not be permitted and outline conditions to protect areas requiring special attention due to their environmental character, hazardous condition or heritage values.
Section 884 of the Act indicates that the adoption of an official community plan does not commit (or authorize) the Regional District to proceed with any specific project specified in the plan, yet it is not authorized to enact any bylaw which would be at variance to the Plan. In other words, once adopted by bylaw, a plan becomes an Official Community Plan, which thereafter restricts the Powell River Regional District to only enacting bylaws and only undertaking works which are consistent with the OCP.
Note: Persons wishing more specific details as to the requirements of a community plan and the items it is permitted to cover should refer to the appropriate sections of the Municipal Act itself.
Map Schedules
The Plan contains the following map schedules which form an integral part of the OCP Bylaw.
Schedule B - the Plan Map contains the land use designations Schedule C - the Development Permit Areas shows the location of development permit areas.
Background Information
Schedule D to this plan is the Background Report. Although not part of the Bylaw, it contains important information which directly relates to the Community Plan Policies and Bylaw. The Background Report provides details on the island's environment, transportation systems, and sewer and water requirements. The presentation approach taken in this section is to provide a general description and discussion of issues pertaining to each of the various topic areas.
Savary Official Community Plan (June/97 Draft) Page I
Regulatory Bylaws
As a means of implementing the plan's policies, the Savary Island Committee (SIC) may recommend to the PRRD Board that bylaws be enacted to regulate: a) the use and density of use of land, buildings and structures; b) the siting, size and dimensions of buildings and structures and uses permitted on the land; c) the location of uses on the land and within buildings and structures; d) the shape, dimensions, and area of parcels of land that may be created by subdivision; e) off-street parking and loading spaces; f) noise and nuisance premises; g) setbacks from hazardous conditions; and h) such other provisions as the Municipal Act may permit.
Amendment Procedure
The Plan may be amended by the PRRD, at its initiative, in response to a request by SIC or an application by a land owner. Individuals seeking amendment shall submit applications in the form provided for in the bylaws of the PRRD that addresses fees and procedures. All applications for plan amendment shall be referred to the Savary Island Committee before being considered by the PRRD Board. Any public hearing required shall take place on Savary Island, during July or August.
Interpretation The final interpretation as to the precise location of boundaries of any designation or symbol contained in the map schedules, shall be legally defined by the appropriate land use bylaws enacted over time by the Powell River Regional District or by site survey, as required.
Symbols or designations used in the map schedules, except for development permit designations or temporary use permit designations indicate approximate locations of existing or proposed activities, uses or features. The exact extent of such an activity or the overall size is to be determined through more detailed studies, policy decisions, or local bylaws.
In interpreting the objectives and policies of the Plan, the term "shall" is used to denote that the indicated measure "must' betaken or applied. The term "should" or "may" indicates that the suggestion is intended as a guideline which is deemed advantageous to apply or implement by the authority having jurisdiction.
Savary Island Committee
The Savary Island Committee (SIC) is elected from amongst land owners on Savary Island by island property owners. SIC's mandate is to play an advocacy and advisory role for the Island to the Powell River Regional District concerning planning and land use matters as well as pertaining to other considerations related to the delivery of regional district (and provincial) services on Savary Island.
The Regional Board and the Savary Island Committee are encouraged to work together in defining the most appropriate means through which the Savary Island community may play a greater role in future decision making respecting land use planning affecting the island.
Options which give the Savary Island community an increased role in land use planning decision making should be explored. Furthermore, it is recommended that any public hearing required with respect to land use planning bylaws having an effect on Savary Island should be required to be held on Savary Island and only during the summer months when a higher incidence of property owners are able to participate.
1.2 Principal Aim and Major Goals
The adopted community plan is intended to serve as a strategy for the future of Savary Island. In order to provide a sense of direction to this strategy which recognizes the aspirations of Islanders respecting the development of their community and is mindful of the area's opportunities and limitations it is helpful to develop a hierarchy of objectives. This is achievable by beginning with the statement of a principal aim which is an expression of the desired outcome for the community. This aim should in turn be qualified by a series of goals, which in turn are clarified and expanded upon through a set of objectives respecting each goal statement. The principal aim and major goals create a framework for the plan objectives and policies. Outlined below are the principal aim and major goals for Savary Island.
Principal Alm:
TO PROTECT THE ENVIRONMENT AND RURAL, ISLAND LIFESTYLE ENJOYED ON SAVARY ISLAND.
Major Goals:
1. To protect natural areas and the natural environmental quality of the Island.
2. To strive for a high degree of community environmental consciousness in terms of land use
management
3. To reserve representative areas of the Island's unique natural environment for community open
space, greenbelt or environmental reserve so that future generations may continue to enjoy the island's physical attributes, biological diversity and scenic beauty.
4. To place restrictions on the use of land that is subject to hazardous conditions or that is environmentally sensitive to development.
5. To safeguard the Island's water supply for continuous use by all present and anticipated future users.
6. To strive for a balance between land use regulations and the desire 'of local residents for a
lifestyle which allows for a high degree of self expression respecting their use of property.
7. To provide for a form of residential development which is mindful of the capabilities of the landscape to support development and aims to maintain the area's rural character.
8. To limited commercial development to uses supportive of Islanders.
9. To provide a level of community services to ensure the safety, health and welfare of
community residents at a scale appropriate for a rural island community.
10. To encourage a transportation system which meets the needs of Islanders (and visitors), yet does not detract from the area's rural island character.
11. To promote the periodic review of the Plan by the Savary Islanders so as to ensure it continues to reflect the views and aspirations of islanders respecting their community.
1.3 Community Plan Objectives and Policies One of the OCP's primary functions is to provide direction in interpreting future land use options. To a large degree planning alternatives are influenced by the area's current development pattern, the carrying capacity of the Island's environment and the desires of local residents respecting the quality of life they wish to see provided for in their community. The optimal land use configuration is one which maximizes the net benefits to island residents, while minimizing the negative impacts.
This section of the Plan discusses the full range of Plan policies - from environmental management to residential and commercial land use designations expected in the study area over the next five to twenty years. Policies are also provided with respect to transportation planning and servicing.
The objectives and policies in the following sections pertain to:
• environmental sensitive areas hazard lands • marine resource areas heritage and archeological sites residential commercial • industrial institutional uses • community open space transportation planning • water supply sewage disposal • solid waste and hazardous materials fire protection
Section 2 Environmental, Marine and Heritage Resources
Savary's natural environment is a major contributing factor to the quality of life and visual attractiveness of the island to residents and visitors alike; provides habitat for plants, animals and marine life; and is at the centre of the island's recreational activities.
As development and human activity intensifies on Savary so does the threat to permanently alter or destroy valuable environmental features and resource areas. It is important that the sensitivities of these environmental areas is understood prior to accommodating future development on Savary so as not to irreversibly alter the island's aesthetically pleasing upland or marine-based natural areas.
Maintaining the island's vegetation is essential given its beneficial effects on groundwater storage, minimizing sail erosion, providing habitat for birds and wildlife and offering aesthetic value. Establishing an objective for island vegetation will be challenging given the wide range of species and associations on the island and given the apparently conflicting notions of development and selective preservation. The island's marine environment including its abundant shellfish stocks are an important local resource which adds to the unique character of Savary. Through Plan policies and other means effort need to be directed towards protecting Savary's marine environment.
Equally important is the need to identify and preserve sites and features which recall the past. Archeological and heritage sites provide a valuable record of past human activity on Savary and a record of the island's history. As provided for in provincial legislation, care should be taken in the case of development in the vicinity of an archeological or heritage site.
2.1 Environmentally Sensitive Areas and Hazard Lands
Environmentally sensitive areas include all marine shorelands and foreshores, bluffs and dunes and some upland meadow and forested areas. Some of these areas are noted for their high biotic capability for flora and fauna and in most cases they are also vulnerable to the impacts of development. Schedule D - Background Information describes the island's geology, plant characteristics and environmental features.
On Savary Island, the primary geotechnical hazards are related to coastal erosion. Policies need to be adopted to safeguard landowners from potential geotechnical hazards and to protect sensitive geotechnical areas such as eroding coastlines, from existing and future development activities. Ideally, development should be prohibited or restricted within the hazardous areas. At present no regulatory framework exists to control the siting of development Due to significant coastal erosion hazards on the island and associated risks to the safety of existing and future development, it is important that an appropriate set of regulatory tools be put in place which are proactive and provide for adequate controls over the use of land subject to hazardous conditions. Regulatory mechanism such as setback requirements, designating development permit areas or requiring a siting permit, have been identified as approaches able to influence the nature of development in a potentially hazardous location.
Studies on the erosional effects on Savary carded out to date are useful as they provide information on coastal sedimentation and erosion processes and the general locations of coastal hazards on Savary Island. However, over time more detailed delineation of the hazardous areas is required. Preparation of a coastal zone management plan would permit the more accurate delineation of areas of the coastline subject to erosion, flooding and steep slope hazards.
Based on the results of previous studies, reducing the rate of erosion by constructing coastal protective devices does not appear to be a viable solution for Savary Island. It Is anticipated that site specific coastal protection will inevitably lead to enhanced erosion and loss of beaches elsewhere along the island's coastline. In addition, considerable retrogression of the upper portions of the bluffs would still take place following construction of any protective device until the bluffs reach a stable angle of repose. Preliminary analysis suggests this could mean that in some areas up to a 40 metres of further bluff top erosion is possible before the slope profile begins to stabilize.
Policies that will help to protect the island's natural environmental features, safeguard landowners from geotechnical hazards and protect the coastline from inappropriate development activities are presented below.
Environmentally Sensitive Areas and Hazard Lands Objectives
1. To undertake development in a manner which, to the extent practical, allows for the maximum retention of the island's vegetation cover,
2. To identify and protect environmentally sensitive features on Savary and retain representative environmental areas in their natural state;
3. To preserve the island's sand dunes by minimizing land development and requiring the retention of their protective vegetative covering,
4. To encourage owners of property which is environmentally sensitive to work cooperatively with
conservation-based groups such as the Nature Conservancy of Canada, Savary Island Land Trust, BC Nature Trust and others, in defining means of providing for the protection of important sites;
5. To maintain bank stability where geotechnical hazards exists and to limit development in such locations; 6. To protect coastal areas from activities which may accelerate or alter coastal erosion processes; 7. To support the retention of shoreline vegetation; 8. To foster a sense of community awareness which encourages the protection of the natural environment as
a means of maintaining the island's ecological integrity,
9. To encourage a pattern of human activity which will not lead to a serious depletion of the Island's natural
resources; and
10. To protect important habitat and water resources areas through vegetation retention and building setbacks.
Environmentally Sensitive Areas and Hazard Lands Policies a) Designating property as being within a development permit area is recognized as the primary
means through which the Regional District may limit development within environmentally sensitive areas and sites prone to hazardous conditions. b) With respect to a designated environmentally sensitive area, the registration of a natural state or
environmental covenant shall be required as a condition of rezoning, subdivision or other change of status (as permitted by bylaw) so as to ensure the site remains protected in the long term. c) Voluntary covenants or easements to protect natural features and donation or sale of sensitive
areas to a preservation agency such as the Nature Conservancy, the BC Nature Trust or the Savary Island Land Trust (SILT) shall be encouraged.
So as to ensure the Island's environmental resource sites are protected, owners (and potential developers) of property located within an environmental sensitive area shall be encouraged to work with recognized conservancy organizations early on in the development process to ensure steps are taken to protect the environmentally sensitive site. d) Where environmentally sensitive areas are located on Crown land, MELP is strongly encouraged
to ensure these areas are placed in protective reserve, ecological reserve or natural state park or dedicated to the Savary Island Land Trust for protection. Public access should be limited to an appropriate level consistent with protecting the environmental sensitivity of the site. e) Due to concerns over coastal erosion on Savary Island, as documented by the Geological Survey
Branch of the Federal Government in their report "Coastal Sedimentary Processes, Savary Island B.C. - a Preliminary Assessment.", a building used for living accommodation shall be setback 20.0 metres from the high water mark of the sea. In a case where a potentially erosion prone bluff is the prominent upland feature adjacent to the sea, a setback of 30.0 metres shall apply from the upper edge of the bluff.
This general setback requirement may be varied, on a site specific basis, by means of a development variance permit, subject to a geotechnical engineer certifying that a building location closer to the sea or a bluff is permissible and the owner agreeing to register a covenant against the property freeing the PRRD of any liability in the event of land slippage or erosion which may lead to a loss of property or life.
Regional unique plant species, significant stands of trees and heritage trees should be protected against development. g) A goal of a land trust program on Savary Island should be to acquire properties which support the
retention of special environmental areas in their unaltered natural state. h) In addition to building setbacks and vegetation retention, in areas potentially prone to
environmental hazard limits, control should also be exercised over the following activities:
i) The location and extent of excavations and fill placement; - the siting inspector may require a survey and/or a geotechnical engineering report be prepared by a qualified professional at the owner's expense, so as to assist the inspector in assessing the suitability of the building's location prior to the issuance of a siting permit.
ii) the location of septic disposal field area;
- through a siting permit (and with the cooperation of the CGHSS) adequate provision should be available so as to ensure the location of a disposal field area does not increase the erosion hazard.
iii) the direction of on-site drainage;
- potentially through a siting permit.
At the time of application for a siting permit, in cases where the siting inspector has sufficient general knowledge of ground conditions in the general vicinity of the proposed building, he/she may required the property owner to submit a geotechnical assessments, undertaken by a professional engineer qualified to prepared such studies, prior to the issuance of a siting permit. The use of natural state restrictive covenants and voluntary measures may also be used to limit future exposure to hazard land conditions. i) For reasons of limiting the extent of development in close proximity to erosion prone cliffs, lot
consolidation is encouraged. j) The construction of roads and trails for beach access in areas of eroding cliffs is not supported.
Instead, public beach access should be limited to already established points of beach access and/or sections of the shoreline which are low profile. k) So as not to unnecessarily promote bank erosion the removal of driftwood from beaches should
be discouraged.
1) Restrictions should be placed on the removal of vegetation within the sand dune area. This can
be achieved through development permit designation or requiring a natural state covenant be provided at the time of rezoning, subdivision or issuance of a siting permit. m) Trees bearing the nests of great blue heron, bald eagle, osprey and other raptors shall not be cut in accordance with the provisions of the Wildlife Act. Where such nest sites are located on private property, the property owners shall be encouraged to ensure the site is protected, including through the use of a voluntary conservation covenant. Such condition shall be applicable with respect to the issuance of a siting permit, rezoning or subdivision of any site containing such a feature. n) The MELP shall be encouraged to inventory eagle trees and other raptor sites on Savary. o) The Provincial Ministry of Environment, Lands and Parks and the Federal Geological Survey
Branch are requested to assist the Powell River Regional District by undertaking further study of the erosion prone sites on Savary Island. This review should also identifying possible remedial steps which could be taken to limit or reduce the rate of erosion occurring.
2.2 Marine Resources
Protecting the natural resources of the coastal area is important to Savary Island. For purposes of this plan, the marine waters within the planning area include the surface of water extending 1,000 metres out from the shore of Savary Island, except where such boundary overlaps with another jurisdictions (such as Hernando Island to the north-west), in which case the boundary becomes the mid-point between the two land bodies. In this plan, the term foreshore refers to the land located between the average mean high tide mark and the low tide line. The foreshore is public land managed by the Ministry of Environment Lands and Parks (MELP).
Jurisdiction in the marine waters off Savary Island is a shared responsibility. The Federal Department of Fisheries and Oceans (DFO) is responsible for all Canadian marine fish habitat and therefore has approval authority over any works or undertakings in the marine or foreshore waters. The MELP's Land Administration Branch oversees the issuance of Crown foreshore leases. PRRD, in turn, has the ability to adopt community plan objectives and policies and zone the surface of the water. Although the MELP is not bound by local bylaws, the occupier of a foreshore lease lot is. However, in the case of a use such as the harvesting of native shellfish stocks, such as clams, harvesters are not subject to local bylaws.
The marine foreshore is highly vulnerable to the effects of development and policies must be designed to protect the physical systems of erosion and accretion which are the basis of the beach formation process and the biological activities of the waterfront. Both are fragile and very susceptible to inappropriate upland uses and foreshore intrusions.
The waters off Savary are primarily used for recreational and mariculture purposes. With the exception of the commercial harvesting of geoducks and clams, there are no commercial or industrial activities, such as log booming areas, marinas or yacht club out -stations, located within the marine waters off Savary Island. In addition, with the exception of the government wharf fronting on Keefer Bay, there are no private docks or piers on Savary. Recreational shellfish reserve areas are located along much of the north foreshore of Savary Island, from approximately First Point to Indian Point.
Savary Island is the most productive clam area in the region. Clam production annually adds over $1 million to the local economy. Commercial shell fish harvesting is typically conducted in the spring and fall. Whereas in the past, the clam resource have harvested to intensively, today Fisheries regulates local clam harvesting on a quota system. As a result the number of clammers has been reduced from 500-600 down to 160. Even with a commercial harvest, shellfish stocks on Savary Island are estimated by DFO to be sustainable without creating a shortage of recreational clams. However in the longer term, the production and survival of shellfish in the area could be at risk due to: potential contamination caused by seepage from faulty (or non-existent) effluent disposal systems and physical impacts due to increased foot and boat traffic.
Nearshore habitat may be physically impacted or disrupted by increased boat use and moorage. Also in the future, the existing government wharf may no longer be able to accommodate the anticipated increased demand likely to be placed on it for boat moorage and passenger and supplies loading/unloading. Should this lead to more boats being tethered to buoys and anchors in Keefer Bay, this could adversely affect shellfish, eelgrass and marine benthos. In spite of the island's lack of safe all-weather harbour characteristics, over time increased development pressures will generate an interest in exploring the possibility of dock space and breakwater capability being increased at the government wharf.
Marine Resource Objectives
1. To recognize the importance of the marine and foreshore environment to the quality of life on Savary Island
and to protect these features from detrimental use and the negative impacts of development,
2. To protect the natural and scenic values of the coastline which provide the island with its rural marine
character.
3. To sustain the island's shellfish resources for long term use for recreational harvesting. 4. To protect coastal areas from forms of development deemed to be inappropriate by reason of location, form,
scale or density.
5. To minimize the impact of foreshore uses on upland property owners. 6. To limit human interference with the drift sector movement of sediment along the foreshore.
Marine Foreshore Policies a) MELP will be requested to encourage and protect marine life by opposing extraction of sand,
gravel or other natural deposits from the foreshore. b) The construction of shoreline protection features such as seawalls or groynes shall be
discouraged. Natural coastal processes shall be left undisturbed to the maximum extent possible and there shall be no deposition of material below the natural boundary of the sea unless a permit is issued by the MELP authorizing a breakwater, seawall or alternate barge landing site.
The MELP, and where applicable the Ministry of Transportation and Highways (MOTH), in considering applications to construct works within Savary's foreshore', should be required to refer such applications to the Regional District for comment. The Regional District in reviewing such a proposal shall:
- inspect the property; - review a geotechnical engineering report provided by the applicant; and
- refer the application to the Savary Island Committee for their review and comment.
Based on this review, the PRRD (and SIC) shall advise the provincial agency whether or not it is prepared to designate the site as a development permit area. In a case where the Regional District decides to designate the site as a development permit area, the permit shall specify the terms and conditions which would be applicable to the development. In cases where, in the opinion of the Regional District, no environmental hazard exists to warrant the site being designated a development permit area, it shall be recommended to the MELP that authorization not be granted for the proposed works. c) The Federal Department of Fisheries and Oceans (DFO) shall be requested to continue to monitor
and regulate the commercial harvesting of clams off Savary Island so as to ensure wild stocks are sustained for recreational harvesting. d) A community-based working group, including affected stakeholder, should be established to
evaluate the current status of shellfish beds on Savary Island. Through this group in consultation with the Department of Fisheries and Oceans, a strategy should be developed to ensure island's shellfish stocks are maintained for recreational and commercial harvesting purposes.
As part of this review DFO should identify the areas with biophysical suitability for shellfish and the areas where recreational shellfish harvesting is carried out. e) The Ministry of Environment, Lands and Parks and DFO shall be requested to designate the
foreshore areas identified in policy d) above as community recreational for the recreational harvesting (only) of shellfish.
The zoning bylaw may include provision for zones of the following foreshore use categories: community recreation, marine protection, mariculture and marine transportation. g) The marine protection zone shall be used to protect significant marine and foreshore areas. h) The government wharf and present barge site, both located on Keefer Bay, shall be zoned marine transportation. i) No building shall be permitted on Crown foreshore (beyond the high water mark of the ocean). j) The Savary Island Committee, on behalf of the Regional District, should evaluate the range of
options available in accommodating increased boat presence and use in the foreshore waters off Savary.
Such a review should consider the full range of options, including expanding wharf capacity, developing boat haul-outs and storage areas as well as evaluating and identifying marine foreshore areas where boats could be anchored so that adverse impacts on the marine habitat are minimized. k) Due to the devastating effect it can have on local marine life, DFO is requested to prohibit drag
net fishing within the Savary Island planning area.
1) Any proposal to establish a commercial shellfish cultivation operation shall not be supported. m) Finfish farming is not supported in the marine waters of the Savary Island Planning Area.
I Prior to constructing any such works on the foreshore, the owner of the upland property must obtain MELP approval. In some locations on Savary, application to MOTH's may also be required.
3.3 Heritage Resources
It is estimated that for over 2,000 years people of the Coast Salish Sliammon First Nation used Savary Island as a favourite summer camping location. Sites of First Nations' cultural activity on Savary Island have been documented by the Heritage Branch of the Ministry of Small Business, Tourism and Culture and include middens and culturally modified trees (CMTs). For instance: areas where archaeological features have been found include a shell midden at Indian Springs and midden sites and culturally modified trees in parts of District Lot 1375.
Members of Captain Vancouver's expedition, in 1792, resulted in the first Europeans coming to Savary. Yet, the first permanent resident (Jack Green) did not arrive until 1886. No artifacts or evidence remain of Savary's earliest European discovery and settlement history. However, there may be merit in identifying and cataloguing the oldest buildings and structures on Savary. A further step is to consider whether in some cases heritage designation or other means should be consider as ways of protecting these sites.
Heritage Resources Objectives
1. To identify, preserve and protect the Island's archeological resources and heritage sites and to minimize the damage or disturbance to known sites.
2. To maintain a record of the heritage resources of Savary,, and
3. To recognize the importance of involving the Sliammon First Nation in heritage conservation.
Heritage Features Policies a) The Savary Island Committee should establish a working group of interested island residents and
through consultation with the Sliammon First Nations develop a process to evaluate, protect and record heritage resources on the island as development proceeds. b) The Heritage Branch, Ministry of Small Business, Tourism and Culture shall be requested to
assist in further identifying archaeological sites and ensure they are protected from disturbance under Section 7 of the Heritage Conservation Act. A community heritage registry should be established to inventory sites considered to be of heritage significance. c) At the time of application for subdivision, rezoning, siting permit or development permit, the
approving authority shall be requested to ensure archaeological sites identified on Savary are protected. d) The identification and preservation of heritage property shall be encouraged, through the use of
voluntary covenants, heritage revitalization agreements and other means intended to encourage the owners of a heritage property to support its heritage designation and preservation. Section 2 Residential Use
Savary Island, despite its relatively small size (450 hectares or 11,1111 acres); remote location, and a current 10 acre minimum parcel size provision, has already been subdivided into over 1,700 legal parcels. Including land consumed by road dedications, that works out to a gross density for the whole island of 3.8 dwellings per hectare (1.5 dwellings per acre). With the exception of the 18 largest parcels (ranging in size from about 2.0 hectares to 144 hectares) the island has already been extensively subdivided into lots that average between 700 and 1,400 sq. metres (7,500 to 15,000 sq. ft.) in size.
A survey of developed parcels on Savary Island, undertaken in 1995, as part of the Tupper Report, revealed that of a total of 1,701 lots available, only 471 had so far been developed and a further twenty were under construction. Based on the assumption that the dwellings under construction have since been occupied, indications are that about 500 dwellings currently exist on Savary. This represents only 30% of the total available supply of lots and, means that notwithstanding the further subdivision of remaining large parcels, there are about 1,200 existing parcels still potentially available for residential purposes on Savary2. Based on the currently applicable 4.0 hectare minimum
2 With the current level of services available on Savary Island, ft is currently not possible to build on all 1,200 parcels, since not all parcels will be able to satisfy the sewage disposal permit requirements or secure an adequate source of water supply. Some island land owners own more than one contiguous parcel; yet, in only infrequently has lot consolidation parcel size, only two of the remaining large parcels can undergo further subdivision and if developed to the maximum density possible under that provision would be able to create about an additional forty parcels.
Savary Island is divided into five district lots. All but one of these district lots has already undergone extensive subdivision into smaller parcels.
Subdivision plans to create a total of 1,401 parcels from three of the five land districts where registered in 1910. The subdivision plan for District Lot 1372, at the end of the island (fronting on Keefer Bay and backing onto South Beach) created 360 lots. The subdivision of District Lots 1376 and 1377, at the west (Indian Point) end of the island, created an additional 1081 parcels'. Parcels in the Indian Point (D.L. 1377) and Front Row (D.L. 1372) areas average 7,500 sq. ft. in size, whereas in D.L. 1376 (the Mid-island area) an average size of about 15,000 sq. ft. is more prevalent. In all cases a fifty foot parcel width is the norm.
Despite Savary's rural recreational character, the subdivision plan approved in 1910 shows no apparent regard for the topographical and land form characteristics of Savary Island. The subdivision layout creates a functional grid network of streets with regular shaped city-sized lots fronting off them. Most of the dedicated public roads were never constructed and despite the small parcel sizes, no services in the form of community sewer or water utilities were (or have ever been) provided. These old subdivision plans also allowed for a number of parcels to be created which have no legal public road access. Despite the presence of bluff conditions along parts of the foreshore, some parcels created have water access only (no road access without having to cross another parcel). In addition no effort was made to ensure unique vegetation areas (such as the Big Meadow) were reserved as community greenspace.
Since those earliest subdivision plans additional subdivision plans approved include:
• the subdivision of the north side of D.L. 1373 to create 39 parcels, with an average parcel size of 0.4 hectares (1.0 acre); • the creation of four parcels - two 6.8 ha. (17 acres) and two about 2.0 ha. (5.0 acres) in size - from the eastern remainder of D.L. 1376, not subdivided at the time of the original subdivision plan; • The creation in 1971 of the Savary Shores subdivision, from the remainder of District Lot 1373, to create 223 lots at an average size of 0.12 ha. (0.3 acres) and one parcel of 15.9 acres serviced by the island's only community water system; • The creation of seven parcels from Parcel B in District Lot 1377, by means of a strata plan of subdivision. This 28 ha. (70 ac.) parcel was divided into seven strata parcels with an average frontage of 92 metres (300 feet) and parcel sizes of between 1.5 and 2.3 ha. (3.9 and 5.6 acres) plus a 14 ha (35 ac.) remainder parcel which is held in common.
District Lot 1375 remains the only one of the five district lots on Savary which has not undergone subdivision. A zoning bylaw proposed for Savary Island would have permitted the D.L. 1375 to be subdivided to create 90 waterfront parcels on community water with the balance of the property retained largely in its natural state. At the time the bylaw was considered, issues pertaining to the carrying capacity of Savary's land base to accommodate more development were a prime community concern. Since known problems With inadequate soil percolation for septic disposal had already emerged as an issue on some parts of the island and due to uncertainty as to the long term adequacy of the island's groundwater supply, the Regional Board decided not to proceed with the zoning bylaw. D.L. 1375 remains undeveloped today.
There is concern that the island is already too heavily subdivided and that the creation of additional parcels from D.L. 1375 (even if developed at an average density considerably less than exists elsewhere on the island) may only aggravate the situation and as a result could further negatively impact on the present quality of life on Savary, unless adequate steps are taken to relieve development pressures elsewhere on the island.
Based on the number of vacant parcels which still remain undeveloped on Savary Island there does not appear to be any pressing need to create additional parcels. At the same time, there is concern that unless ft can be demonstrated that there is clear evidence a tangible benefit to the island community to be gained by further property development the further rezoning or subdivision of land on Savary should not occur. As a result, in addition to any other requirements, as a condition of development approval to create additional parcels, the party proposing to develop the land must (through means of off-site lot consolidation, land dedications or cash-in-lieu of land
occurred.
3 Some years later the subdivision plan for the western most part of Indian Point was replotted. dedication) ensure the net effect should their development be approved, would be a net reduction in the total number of parcels on the island.
The General Residential Objective and Policies which follow are applicable to all residential designations.
Residential Objectives
1. To permit a variety of residential parcel sizes while remaining respectful of the area's rural character and
applicable servicing requirements,
2. To recognize that the land area required for ground disposal of septic effluent will be a primary factor in
limiting the development density in the planning area;
3. To limit the number of dwellings on Savary Island by encouraging lot consolidation and/or the dedication of land to a community land stewardship program;
4. To ensure that new subdivision design is consistent with the rural character of Savary and require new
development to be supported by adequate water supply and sewage disposal systems; and
5. To permit island residents the freedom to determine on their own the quality of residential construction they
wish to reside in.
3.1 Residential - General
The principal means available in influencing population growth and settlement patterns is through regulating zoning and parcel size 4 . As a means of allowing for a gradual rate of future population growth on Savary Island while safeguarding those amenities which make the area a pleasing rural island community in which to live, the following series of residential policies are provided.
The Community Plan makes provision for four land use designations where residential use is the primary land use activity permitted on a parcel. The names of these designations are indicated below with their general location described in parenthesis:
Rural Residential (existing small lot areas)
Community Residential (Savary Shores subdivision) Rural (existing large parcels)
Comprehensive Residential (potential future development areas)
Residential General Policies
The following general residential policies are applicable with respect to all residential designations in the planning area: a) All sewage effluent originating on a parcel shall be disposed of on that parcel by an acceptable
means of effluent disposal satisfactory to the Coast Garibaldi Health Services Society (CGHSS). The residential development of a parcel shall only be permitted where a permit for effluent disposal has been approved by the CGHSS. b) All new parcels created shall be required to have a potable domestic water supply of a quality
acceptable to the CGHSS. c) One single family residential dwelling use and a guest cottage, not exceeding 36.5 sq. metres
(400 sq. ft.) shall be permitted on a parcel subject to CGHSS approval for the level of site occupancy proposed.
A zoning bylaw may specify minimum building setbacks from property lines and a maximum lot coverage ratio. d) A professional practice, home craft/hobby activity and home occupational use shall be permitted
in any residential designation.
4 Reference to minimum parcel size is only applicable with respect to the creation of new parcels.
A zoning bylaw may specify conditions of use applicable with respect to these uses. e) A bed and breakfast use shall be permitted in any residential designation subject to compliance
with the following condition: - no more than three bedrooms, able to accommodate a maximum of six guests, shall be permitted; - the method of sewage disposal and source of water supply on the parcel have been approved by CGHSS as adequate to support the proposed use; and - no provision is made for guests to bring a motor vehicle onto the Island.
The zoning bylaw shall specify conditions of use applicable with respect to this use.
A camping use shall be permitted on a parcel subject to adequate sewage disposal and water supply being provided and conditional on the camping use not creating a nuisance or fire hazard for a neighbouring residential use. g) Subject to the other policies of this plan (including the minimum parcel size provisions specified
for each residential designation), subdivision for residential purposes may be designed on the basis of density averaging where it would permit the more efficient use of the amenities and features of a specific site. In cases where density averaging is used:
i) the proposed residential density of the subdivision shall be calculated as an average of the number of parcels that may be created as a function of the total area to be subdivided, exclusive of land dedicated for roads and parks;
ii) in no case shall the minimum size of any parcel created by this means be less than 0.4 hectares (1.0 acre); and
iii) it will be necessary for a restrictive covenant to be registered against the title of land prior to final approval of the subdivision, prohibiting the further subdivision of any lot in the original parcel where the aggregate average of all lot sizes does not permit further subdivision of the original parcel.
Note: Due to the high degree of subdivision activity which has already occurred on Savary and the prevalence of small parcels that already exist, this policy shall only be applicable in the Rural and Community Land Stewardship land use designations. h) As they are considered to be inconsistent with the overall rural character of Savary Island, no
provision shall be made for a mobile home park designation or a multi-family residential designation (i.e. townhouses, apartments) in the planning area. i) The Minister of Municipal Affairs and Housing is requested to provide the Powell River Regional
District with authority to utilize the siting and use permit provisions, as outlined in Section 28 of the Islands Trust Act, with respect to regulating land use on Savary Island. j) Should the Minister grant the PRRD siting permit authority, that in lieu of a building bylaw being
in effect, a siting permit shall be required prior to locating a building or structure on a parcel on Savary Island.
Approval of a siting permit shall be conditional on proof of: - a valid access permit from the Ministry of Transportation and Highways (MOTH); - a permit for sewage disposal from the CGHSS; - a source of water supply; and - a survey plan showing the location of the proposed building(s) on the parcel. k) The zoning bylaw may specify a minimum setback from a property line for all buildings and may
specify a different standard for buildings or structures housing a generator. In addition, through adoption of a noise bylaw, the regulation of hours of the day a generator may be operated and standards for noise baffling required in operating a generator or similar equipment would be possible.
3.2 Rural Residential
Rural Residential Policies
In addition to the General Residential policies, the following policies are also applicable respecting the Rural Residential land use designation: a) The Rural Residential designation shall be restricted to land which have already been subdivided
for residential purposes and is generally described as including all the existing small subdivision lots in District Lots 1372 (east end of the island), 1376 (mid-island area) and 1377 (the Indian Point area). b) The minimum parcel size for new parcels in the rural residential designation shall be 1.0 hectares
(2.5 acres).
C) So as to avoid crowding and prevent a scale of development in the Rural Residential designation
which is out of character with the rural nature of Savary Island, the consolidation of existing parcels or their dedication to the Savary Island Land Trust shall be encouraged.
3.3 Community Residential
Community Residential Policies
In addition to the General Residential policies, the following policies are also applicable respecting the Community Residential land use designation: a) In order to provide for an intermediate parcel size for residential purposes and based on the
existing settlement pattern proximity to current developed areas and the existing provision of a community water supply, the Plan designates the Savary Shores Improvement District subdivision as Community Residential. b) Lands designated Community Residential shall be restricted to a minimum parcel size (excluding
all roads, and public areas) of not less than 0.4 hectares.
3.4 Rural
Rural Policies
In addition to the General Residential policies, the following policies are also applicable respecting the Rural land use designation: a) The Rural land use designation is intended to limit the further subdivision of the scarce supply
of large residential parcels remaining on Savary Island as the retention of these parcels is deemed important for watershed protection purposes. b) Application to redesignate lands in the Rural designation to permit an alternate use shall be
evaluated based on individual merit. Preference shall be given to applications which propose to develop the property by means of cluster forms of development, offer protection for sensitive natural areas, safeguard significant forested areas and develop interior roads at a scale and design standard in keeping with the rural character of Savary Island. c) Lands designated Rural shall be restricted to a minimum parcel size of not less than 4.0
hectares.
3.5 Comprehensive Residential
Comprehensive Residential Policies
In addition to the General Residential policies, the following policies are also applicable respecting the Comprehensive Residential (CR) land use designation: a) Except as provided for in Policy 3.5 d), the minimum parcel size in the Comprehensive
Residential designation shall be 4.0 hectares. b) No more than one residential dwelling unit and a guest cottage, not greater than 36.5 sq.m. (400
sq. ft.), shall be permitted on a parcel in the CR designation. c) No provision shall be made for any commercial use, including a golf course or other form of
commercial outdoor recreation. d) Notwithstanding the provisions of Policy 3.5 a), the number of additional residential parcels
which may be created from a parcel designated Comprehensive Residential (CR) may be increased based on the formula outlined below.
An owner seeking to have a parcel redesignation to CR shall be entitled to:
i) one additional parcel for every three existing parcels in District Lots 1372, 1376 or 1377
which the owner dedicated to SILT or another land conservancy society agreeable to SIC and the PRRD; or
ii) one additional parcel for every five existing parcels in District Lots 1372, 1376 or 1377 which
are consolidated to create newly configured parcels of 0.4 hectares or larger; or
ii) cash-in-lieu of land dedication permitted in i) above, with monies held in reserve for the sole purpose of acquiring lands on Savary Island for land conservancy purposes.
The PRRD, assisted by SIC, shall define: a formula for determining cash-in-lieu requirements; a means through which reserve monies are to be held; and approach for ensuring monies held are used to acquired and retained lands for conservancy purposes.
Note: The intent of this policy is (subject to compliance with any other requirements) to permit
the remaining undeveloped parcels on the island to undergo development as CR, but only under circumstances where the total number of developable parcels on the island is actually reduced. e) In no case shall the minimum parcel size in the CR designation be less than 0.4 hectares or the
average parcel size be less than 2.0 hectares. Lands within the parcel dedicated for natural conservancy or community greenbelt purposes shall be included in calculating average parcel size.
The designation of lands for inclusion in the CR designation shall be evaluated based on
individual merit and based on the applicant's submission of information on the following:
- the dedication of lands for watershed and environmental protection, public open space dedication and community servicing provisions;
- the proposed configuration of parcels and the siting of buildings;
- the provision of services (water supply, sewage disposal and internal roads);
- the dedication of public road rights of way on the property, including (where applicable) provision for point of public road right of way access to the waterfront;
- the scale and nature of other uses (ancillary to the primary residential uses) which are proposed to be conducted on the parcel;
- archeological sites on the property and measures proposed to be taken to ensure these sites are protected; and
such other considerations as the Regional District may deem appropriate in fully evaluating an application for CR designation. Section 4 Economic Activity
Due to its rural character and low population density, there is only very limited commercial activity on Savary Island. The OCP makes provision for three types of commercial land designations: local commercial and service commercial and tourist recreational commercial. Each of these commercial designations shall be discussed separately. Also discussed in this section are industrial use and temporary commercial and industrial use permits.
Commercial Activity
Objectives - Commercial Activity
1. To support commercial development in cases where it may be demonstrated that it is at a scale compatible
with the needs and size of Savary Island, and
2. To consider making provision in the future for a limited number of tourist-recreational commercial
establishments where such uses are complementary to the Island's current way of life and are respectful of the island's natural environment
4.0 Commercial General
Primary emphasis has been placed on recognizing already existing commercial operations on the island as the key locations for commercial activity in the future. Nonetheless, as Savary's population increases and/or the number of full time residents grows, opportunities for additional commercial uses will emerge on the island. The plan does not endeavour to specify a location where future general commercial uses should be located. Depending on the nature of the commercial use proposed and in order to promote reduced need for motor vehicle trips on the island, the plan shall remain flexible in considering applications for commercial use in all parts of the island.
Policies - Commercial General
These policies are applicable to any parcel designated commercial: a) The minimum parcel size in any commercial designation shall be adequate to safely dispose of
effluent and provide for an on-site water supply. b) The community plan makes provision for three separate commercial land use designations:
• Local Commercial, • Service Commercial, and
• Visitor Commercial.
Policies pertaining separately to each of these commercial designations follow, whereas the locations of commercially designated property are shown on Schedule B (the Plan Map) which is attached to and forms part of this plan.
4.1 Local Commercial
Policies - Local Commercial a) In the Local Commercial designation emphasis shall be placed on commercial activities which
serve the needs of the island community. b) Local commercial sites on Savary shall include:
- Kassian's General Store (D - Savary Island General Store 0 - Mad Hatter Restaurant a
The number shown opposite the name of the commercial use may be used to identify the location of the subject property on the Plan Map (Schedule B) [located in the centre of this booklet]. c) So as to allow for some expansion of commercial activity in parts of the community removed
from the existing commercial sites, an application to designate a site for local commercial use elsewhere in the planning area shall be considered based on individual merit and satisfactory compliance with the following criteria:
i) The proposed use is small-scale in nature and primarily provides a local convenience service for the island;
ii) The parcel has adequate off-street parking and sewage disposal and water supply can be provided on the parcel;
iii) The proposed local commercial use will not substantially detract from the residential character of the surrounding area or cause excessive traffic to be routed along a local road; and, iv) The proposal has the general support of neighbours in the immediate vicinity.
4.2 Service Commercial
Policies - Service Commercial
The following policies are applicable respecting the Service Commercial land use designation: a) The Service Commercial designation shall be used to identify sites for auto repair and storage,
fuel handling and sales, building supply storage and sales, marine supplies and related uses. b) Existing Service Commercial sites on Savary Island include:
- B&D Lumber 0
- Portion of Lot 224, Plan 14149, District Lot 1373 (Bilansel Investments Ltd.) @
- Breckenwood Propane Rental - Savary Cycle& Recycle 0 - Savary Island Tool Rental 0 - Savary Island Services (D - Carriere Contracting 0 c) Over time a site should be designated Service Commercial for purposes of fuel storage and
sales/distribution on Savary Island. This site should, subject to Provincial Safety Regulations, be designed in a manner which ensures any spillage of petroleum products is contained so as not to harm the island's environment.
The provision of fuel on the island would increase fire and environmental safety by reducing the need for fuel to be transported in small amounts via the water taxi. d) So as to allow for some limited expansion of service commercial activity, an application to
designate a future site for service commercial use elsewhere in the planning area shall be considered based on individual merit and satisfactory compliance with the following criteria: i) The proposed use is small-scale in nature; ii) The parcel has adequate off-street parking and sewage disposal and water supply can be provided on the parcel; iii) The proposed service commercial use will not substantially detract from the residential character of the surrounding area nor create excessive noise or cause excessive traffic to be routed along a local road; and, iv) The proposal has the general support of neighbours in the immediate vicinity.
4.3 Visitor Commercial
Policies - Visitor Commercial a) The Visitor Commercial designation is intended to accommodate those services and facilities
catering to the needs of the vacationing public and visitors to the island. It includes provision for uses as guest house, lodge, restaurant and similar facilities, excluding a campground use.
Although Savary Island has had a long history of hotel and resort accommodation, presently no such facilities exist on the island and therefore no sites have been designated as visitor commercial on the Plan Map. b) Applications to designate land for Visitor Commercial purposes shall be evaluated based on the
following criteria:
i) The use is in keeping with the character of the area in which it is located. ii) The use shows due regard for adjacent land and water uses.
iii) The use does not reduce or limit public access along the foreshore.
iv) The use makes adequate provision for services (including land disposal of effluent, a suitable potable water supply and parking). v) The proposal receives the general support of neighbouring property owners.
Depending on the nature of the proposal and its location, the Regional Board (supported by the SIC) may choose to designate a tourist-recreational commercial site as a development permit area in order to provide a greater degree of control over the form and character of the development. c) In no case shall a building used to provide an accommodation use provide for greater than six (6) guest rooms or sleeping units able to accommodate not greater than twelve (12) guests at any one time. Meals may be provided. 4.4 Industrial Development
Unlike Texada Island, its neighbour to the south, Savary at present has no industrial activity. In addition, due to the planning area's rural setting, remote location, recreational character and island residents' concern for a protection of the environment, the plan makes no provision for any industrial uses or sites on Savary Island.
Objective - Industrial Development
1. To not support industrial activity locating on Savary Island.
Policies - Industrial Development
I a) Currently there are no industrial uses on Savary. The plan makes no provision for industrial uses in the planning area (including the foreshore) and does not designate any site for future industrial use. 4.5 Temporary Uses
Section 975 of the Municipal Act permits the designation of sites in an official community plan where temporary commercial and industrial uses may be approved on a temporary basis by permit, without requiring the land affected to be zoned for the intended temporary use.
Where a permit area under this section is designated, the Regional District may issue a permit by resolution that allows commercial or industrial activities to take place under the conditions specified in the permit, including the posting of a security to ensure compliance with the terms of the permit. Notice of the intent to consider the issuance of a permit must be given. Under a temporary use permit the specified uses may be carded out for a period of up to two years and the permit may be renewed for up to a further two years.
Temporary Commercial and Industrial Use Objective
1. To make no provision for temporary use permits in the planning area.
Temporary Commercial and Industrial Use Policies a) No provision shall be made for the issuance of temporary use permits on Savary Island. A change of use shall necessitate rezoning. Section 5 Institutional Uses and Open Space
5. 1 Institutional Uses
Institutional uses refers to the provision of public community service functions intended to serve the needs of the overall community. Owing to its small permanent population and the rural level of services area residents have come to accept there are few institutional uses provided for on Savary Island.
Policies - Institutional Uses
The following policies apply with respect to Institutional uses on Savary Island: a) Institutional uses may be located in any land use designation in the planning area. b) The following sites shall be recognized as institutional uses in the planning area:
Savary Island Fire Hall and Community Hall Multi-denominational church site Ministry of Highways Maintenance Yard area Savary Shores Improvement District water storage tank site former fire hall site (on Savary Island Road in Savary Shores subdivision)
Consideration in the zoning bylaw should be given to placing these uses in an institutional zone.
C) In the longer term, consideration should be given to improving upon the delivery of emergency
ambulance service on Savary. Modest plans, such as an ambulance-type vehicle, stationed at the Savary Island Fire Hall, and operated by the volunteer fire department being used to provide emergency first aid and transportation of the injured or sick to air or water transfer points should be explored.
5.2 Island Open Space
Provision for open space is an essential ingredient in any land use plan. Community green space may serve a variety of purposes and should be located to satisfy these differing needs. Savary Island has long been a favourite recreation area for both residents and visitors alike. The policies which follow are intended to ensure that Island's representative natural areas and significant recreational landscape features are retained (and in some cases dedicated) for nature-based recreational use, while protecting these sites from overuse.
Policies - Island Open Space
The following policies are applicable with respect to parkland dedication and development on Savary Island: a) Island open space may be located in any land use designation in the community plan area without requiring a plan amendment.
The zoning bylaw may designate individual parcels as open space. b) It is recommended that the Regional District and Provincial Government place high priority
on securing for natural state greenbelt or wilderness reserve purposes, properties which exhibit high recreational capability.
With respect to this policy emphasis should be placed on dedicating sites for community open space which provide good access to the area's coastal shoreline, to significant natural landmarks and scenic upland viewpoints. c) With respect to Policy 5.2 b) emphasis should be placed on designating the following areas
for natural state open space:
• Green's Point
• Beacon Point
• a representative section of the mid-island's sand dune ecology
• existing nature trails (including Sunset Trail)
• Indian Point mud flats. d) Pursuant to the provisions of the Municipal Act, a landowner at the time of subdivision (to
create three or more parcels where the minimum parcel size is less than 2.0 hectares) is required to dedicate not less than five percent of the overall land area of the parent parcel for open space purposes. Alternatively, it is permissible for the Regional District to require cash instead of land, which is held in reserve for future community open space acquisition on Savary Island. e) In supporting the establishment of additional sites for open space, greenbelt and protected area status the following different classification of open space are recognized (in order of priority): wilderness areas, to be preserved in their natural state, without public facilities (i.e. wildlife breeding and nesting sites, unique or important plant assemblages or geological features, etc.); maintained trail systems; and water-access only areas, without facilities.
Existing parcels of Crown land on Savary Island not required for community institutional purposes should be designated as community greenbelt. g) No provision shall be made for a park to be used for overnight camping. h) Due to a lack of washroom facilities and the potential forest fire hazard, efforts shall be made
to prohibit camping on any part of the beach (or Crown foreshore) of Savary Island. i) The Ministry of Environment Lands and Parks shall be requested to post signs on the Crown
foreshore indicating no camping, fires, trash or commercial beachcombing. Section & Transportation Planning
The movement of people and goods is an important consideration in determining how the planning area will grow and develop. Being an island based community, Savary is dependent on water and air access to connect it with the rest of the Province. This single factor has had a dramatic impact on population density, the scale of development and in some cases the types of activities carried out on the island. On Savary, the availability of a poorly maintained, though passable road system extending the full length of the island has permitted development to become dispersed to all parts of the island.
Objectives - Transportation
1. To maintain the island's network of main roads in reasonable repair so that they may adequately meet
the needs of Island residents.
2. To accommodate goods and equipment shipped to the island by barge, yet to attempt to limit the
number and types of vehicles permitted to gain access to the island roads.
3. To support the provision of water taxi connection between Savary Island and Lund at adequate
frequency at all times of the year.
4. To accommodate air travel to Savary Island in a manner which minimizes the impact on public safety
and does not detract from the peaceful enjoyment of the island.
6.1 Land Transportation Policies a) That a network of main rural roads be provided for on Savary Island. The map on the next
page identifies main rural roads on Savary. b) Main rural roads should be maintained at a standard which:
- is suitable for emergency vehicle use (including fire truck); - provides for two way vehicular traffic; and - meets certain minimum load capacity requirements. c) MOTH shall be encouraged to maintain main rural roads at a standard suitable for
reasonable all-weather access to all parts of the island, taking into account the low level of traffic occurring on the island. d) Secondary rural roads shall include roads which experience only a limited volume of
vehicular traffic and which are intended to primarily be used by pedestrians, bicycles, all terrain vehicles, licensed service vehicles and public transit vehicles. e) In keeping with Savary's rural character road standards should be limited to maintaining
serviced island roads to the minimum standard required to permit safe traffic on main rural roads at low speeds and limit the amount of roadside brushing to that needing to be undertaken for reasons of improved road safely and fire safety.
Parking in the vicinity of the Government Wharf shall be limited to designated parking areas. g) In the longer term, in order to relieve traffic pressures on Savary Island Road hill,
consideration should be given to securing a right-of-way alignment through Lot 11, Plan 2732, D.L. 1372 to provide road connection to Vancouver Boulevard and thereby provide an alternate route to the Esplanade for emergency vehicles and barge traffic. h) Land owners shall be required to:
- set buildings not less than 4.5 metres back from a public road right of way - obtain an access permit from the MOTH prior to constructing any building or structure. i) The utilization of undeveloped road rights of way for purposes of a trail or for access to the
foreshore shall be encouraged provided such use does not create an environmentally hazardous situation. j) In cases where public road rights-of-way dedicated at the time of subdivision provide access
to the coastline, the Subdivision Approving Officer is encouraged to ensure the right-of-way dedicated is, as much as possible, located so as to permit reasonable access down to the water's edge.
6.2 Water Transportation Policies a) Due to the importance of the government wharf at Savary Island in providing water-based
transportation to the community, it is recommended that actions be taken to ensure the facility is either maintained by the Federal Government as a remote port or an adequate transition period is provided for before responsibility for facility operation is transferred to the regional district and/or local community. b) Water taxi service is recognized as the main means of gaining access to Savary Island for
most persons and as such its use of the float at the government wharf should be given priority. c) The existing terms of the lease to operate a barge service from a water lot at the east end
of the island need to be more fully complied with (including with respect to no storage of vehicles on the adjacent upland), so as to reduce the negative impacts of this use on neighbouring upland property owners. d) Effort should be made to identify an alternate barge loading site on Savary. So as to reduce
vehicle traffic on Esplanade, increase children's safety and generally reduce congestion at the east end of the island, the feasibility of designation an alternate site for barge loading purposes elsewhere on the island should be actively pursued. The following criteria should be considered when evaluating alternate sites: - accessible at a ten foot (10.0 ft.) tide or better; - adequate provision for an upland area for loading and vehicle access & queuing; - evidence to demonstrate that the proposed site will not accelerate the rate of erosion affecting adjoining private properties, result in excessive scouring of the foreshore habitat areas nor pollute or otherwise harm nearby shellfish sites; and
Page 22 (June Draft) Savary Official Community Plan - evidence as to how the proposed use can best be integrated into the receiving island neighbourhood. e) SIC and the PRRD should work in conjunction with MOTH and the local barge operator(s)
to regulate the number of vehicles transported to Savary Island.
Initiatives which permit limits to be placed on the number of vehicles transported to Savary Island (and permitted to travel on the island's roads) should be actively pursued. Potentially, vehicles transported to the island should be limited to: commercial vehicles, road building equipment, emergency vehicles, garbage/recycling truck and permanent residents.
The moorage of private pleasure boats in the waters off Savary Island shall not be restricted; however boat owners are encourage to ensure they do not discharge any effluent that could pollute local waters nor moor their boat in a manner which could be harmful to local shellfish, eelgrass and other marine life.
6.3 Air Transportation Policies a) The air landing strip within D.L. 1375 on Savary Island is recognized as an integral part of
the island's overall transportation network. For this reason, should the subject property undergo development, effort should be made to retain the landing strip for on-going use by persons who reside on Savary (and their visitors). b) Persons operating and using the airstrip facility on Savary should make a concerted effort
to honour an accepted code of conduct respecting how they should use this facility. In conjunction with the local community, a code of practices should be developed. For instance: - effort should be made to limit arrivals and takeoffs to reasonable hours when the impact of noise pollution is least dramatic; - all island flights should provide for adequate clearances over Savary neighbourhoods on the approach or departure from the landing strip; - planes should bank on departure to minimize on-island noise impact; and - adequate screening should be provided around the airstrip facility as a noise and visual buffer as well as a wind break. Section 7 Servicing Provision
7.1 Aquifer Stewardship
Savary Shores (Water) Improvement District is the only community water systems on Savary Island. All other property owners rely on individual wells (or sandpoints), the island's springs or collected rainwater as their source of potable water supply.
Groundwater is drawn from fresh water aquifers which underlay the island. The aquifers vary in water quality and quantity. A number of factors, including geologic conditions, soils, vegetation cover, sewage disposal methods and proximity to the sea can influence the quality and quantity of the island's water supply. Until such time as the aquifer's sustainability has been proven, person/day rates of water consumption should be limited to 60 gallons/person day.
Aquifer Stewardship Objectives
1. To work in conjunction with the Ministry of Environment and Coast Garibaldi Health Services Society and Ministry of Municipal Affairs and Housing to ensure the wise use and protection of the Island's water resources.
2. To protect important groundwater recharge areas.
3. To limit the further subdivision of land unless the availability of an adequate year round potable water supply to service the development may be proven, without adversely affecting the aquifer or the availability of water for present users.
4. To support metered community water where it would permit the more efficient provision of a reliable and clean potable water supply to island residents.
5. To protect the aquifer from contamination and to identify and eliminate sources of pollution to the island's water supply.
6. To manage the island's aquifer on a sustainable basis;
7. To promote aquifer conservation strategies and to reduce water demand as much as possible,
8. To undertake a program to monitor the quality and quantity of the groundwater aquifers on Savary Island, and
9. To eliminate non-essential large scale uses of domestic water (such as lawn sprinkling).
Aquifer Stewardship Policies a) Proof of any adequate potable water supply shall be a condition of subdivision approval. The subdivision servicing bylaw may specify a minimum daily water supply required per parcel depending on the use proposed and whether or not serviced by a community water system. b) Potable water may be provided from rain water, springs and groundwater sources. c) In highly developed areas where problems with current water supply are being experienced, such as the Indian Point area, the relative merits of potable water supply being provided by means of a community water system, with source wells located in an aquifer that can sustain the pumping rates required, should be actively considered, in conjunction with benign effluent levels. d) Proposals to establish a community water system to service three or more parcels shall be supported conditional on a water management review being prepared by a Professional Engineer which examines: i) the potential impact on existing water users in the immediate area; ii) the recharge capability of the aquifer relative to anticipated maximum water demand of the proposed system; iii) ownership and management of the system; iv) the pumping rate that can be sustained without inducing sea water intrusion;
v) the appropriate system storage reservoir size which optimizes the efficient use of the available supply, while protecting the health of the aquifer; and
vi) remedies available in the event of a water system failure.
In the case of a water system proposed to be operated as a water improvement district approval of letters patent obtained through the Minister of Municipal Affairs and Housing shall also be required. Whereas, in a case of a (water) public utility under the Water Act, licensing by the Ministry of Environment shall be required. e) So as limit the wasteful use of the island's aquifer, all community water systems established on Savary should meter water consumption and penalize excessive overusers.
So as to determine the maximum groundwater withdrawals that can be sustained from the aquifers on Savary Island, the Ministry of Environment, Water Rights Branch should undertake a groundwater modelling study to identify maximum future groundwater withdrawals that can be sustained without inducing sea water intrusion and determine a maximum population density for Savary.
Priority consideration for this type of analysis needs to be placed on those parts of the island which are experiencing water shortages, where there is evidence of sea water intrusion or which are undergoing higher rates of development and/or water consumption. g) In areas where there is a risk of sea water intrusion, monitoring wells should be installed between the shoreline and the community well or private wells. Regular monitoring of specific
conductivity should be carried out at these locations to provide an early warning of impending seawater intrusion, so that preventive action can be planned and taken. h) As a community initiative, and in conjunction with supportive ministries, a groundwater monitoring program, consisting of selected existing water wells and monitoring wells installed in strategic locations, should be established. Water-levels should be measured on a regular basis to monitor groundwater flow directions and the effects of pumping; specific conductivity should be monitored on an ongoing basis as a measure of impending seawater intrusion, and sampling of selected wells should be carded out on an annual basis to monitor groundwater quality. The results should be evaluated by a qualified hydrogeologist. i) A database of all existing well logs should be established and updated on a regular basis as development proceeds. Similarly, a data base of groundwater sampling results should be established which incorporates the results of testing carried out by a community water district, government agencies and private individuals. j) Monitoring data (including water-levels, groundwater withdrawals, specific conductivity measurements and groundwater chemistry) collected by districts serviced by community wells should be assessed by a qualified hydrogeologist on a regular basis so as to ensure it continues to meet safe drinking water standards. k) Inactive and abandoned wells should be properly capped so as to avoid contamination of the island's aquifers.
1) Methods of water conservation such as low water use fixtures, composting toilets, retention of rainwater and runoff in cisterns and ponds and other means shall be encouraged. m) The use of chemical fertilizers, pesticides, and herbicides should be discouraged in order to protect the aquifer and sea life. n) Uses which are consumptive of large quantities of water shall be prohibited, through zoning, from locating on Savary Island. o) MLPH is encouraged to implement groundwater licensing legislation and regulations. p) A public education program should be encouraged to raise awareness about the potential for groundwater contamination and the need for wellhead protection. The public should be educated regarding water conservation measures, proper maintenance of septic systems and proper handling and disposal of household chemicals and the long term environmental and financial costs of conventional versus alternate waste systems. 7.2 Sewage Disposal
Sewage disposal (or liquid waste management) on Savary Island is provided for by means of in-ground septic and field disposal systems, approved through a permit system by the Coast Garibaldi Health Services Society (formerly the Ministry of Health). Their standards require a minimum parcel size of 1.0 ha for septic approval of a parcel not serviced by community water and between 0.2 and 0.4 he. for a parcel serviced by a community water system. Depending on parcel slope and soil depth a larger minimum parcel size may be required. There are no community sewer systems on Savary Island.
Since the aquifers are the principal source of drinking water on Savary, the safe disposal of all effluent is essential. Equally important is the need to prevent sewage seepage into the Island's marine or surface waters.
Sewage Disposal Objectives
1. To ensure that the disposal of sewage does not lead to health hazards or environmental degradation through pollution of the aquifer or marine waters within the Savary Island Planning Area;
2. To not support the use of private marine outfalls for sewage disposal in the planning area;
3. To use innovative technologies as a means of effluent disposal, and
4. To further investigate the relative merits of small community effluent systems as a means of addressing the island's sewage disposal situation.
Sewage Disposal Policies a) All existing septic disposal systems in the planning area should be maintained in proper working order so as to prevent pollution of the island's surface, marine and groundwater. b) Due to inadequate soil conditions on Savary, conventional septic systems lack the ability to properly protect the aquifer from contamination. As a result, the CGHSS standards with respect to minimum parcel sizes and covenant area for tile field area shall be applicable with respect to the creation of new parcels created through subdivision. c) For existing parcels compliance with the Sewage Disposal Regulations under the Health Act shall be required as a condition of obtaining a permit to construct a septic disposal system. d) In no case shall a septic disposal field covenant area be located closer than 30.5 metres from a well casing. e) In a case where it is not possible to accommodate a septic disposal field covenant area and a residential dwelling use on the same parcel, as a condition of obtaining a septic disposal permit, a property owner may, subject to the approval of the CGHSS seek to obtain a permit:
i) by consolidating the parent parcel with an adjoining parcel (or parcels) so as to achieve sufficient area to accommodate the intended use and the required disposal field area, or
ii) through easement or covenant limit the use of all or a portion of an adjoining parcel to septic disposal purposes, or iii) through easement provide for a source of water supply from off the property.
On parcels where it becomes evident that the approval of a conventional septic disposal system is not possible (typically due to slope or soil conditions or insufficient parcel area), development shall be prohibited unless the CGHSS is prepared to approve an alternate system of effluent disposal. In such cases the CGHSS may permit fill material to be placed within the intended disposal field area so as to permit the alternate system to function properly. g) In areas which are experiencing problems with groundwater contamination or where local property owners unable to develop their properties due to an inability to obtain approval for an on-parcel septic disposal system, consideration shall be given to the feasibility of establishing a community sewer system, subject to it being demonstrated to the satisfaction of the Pollution Control Branch of the MELP that the sewage effluent generated may be satisfactorily treated and disposed of. h) The CGHSS shall be encouraged to consider the feasibility of innovative technologies (including humus toilets and alternative means of disposing of grey water) as an alternative to septic disposal or a sewage treatment plant. i) Sewage outfalls into the marine waters of the planning area shall not be permitted. 7.3 Solid Waste and Hazardous Material Management
There is no landfill site on Savary Island. As a result all solid waste and hazardous materials originating on Savary Island needs to be transported off island for disposal, usually at the Municipal Transfer Site in Powell River. A private operator provides garbage pick-up and recycling operation exists on the island. Materials picked up are subsequently trucked off island, by barge, and delivered to the local recycling depot or waste transfer site for export. Solid Waste and Hazardous Material Management Objectives
1. To ensure that there is no degradation of air, water, or soil quality on Savary Island as a result of waste recycling and disposal, 2. To encourage reduction, reuse and recycling of waste materials; and
3. To require hazardous materials and petroleum products to be handled in a manner which will prevent environmental contamination.
Solid Waste and Hazardous Material Management Policies a) The reuse and recycling of all solid wastes generated on the Island is encouraged. b) There shall be no burying of garbage on Savary Island. All solid wastes and garbage must be disposed off island. To avoid the potential risk of leachate originating from a landfill site contaminating the island's groundwater supply, no provision has been made for a site on Savary Island for the storage or dumping of solid wastes.
Due to the overall extent of small lot subdivision activity which has already occurred on Savary and the generally high permeability of soils on Savary Island, preliminary indications are that eventually future population pressures could create a need to investigate the feasibility of a waste transfer station being located on the island. The site identified should have an impervious surface and only be used for the short term storage of waste materials prior to being shipped to the mainland for disposal. c) The Powell River Regional District or the Ministry of Environment, Lands and Parks should assist the Savary Island Committee in ensuring the public is adequately informed of safe methods of disposing of hazardous wastes off-island. Furthermore, as a community initiative, on an annual basis, hazardous household chemicals should be collected for safe disposal off island. d) As an alternative to island property owners each needing to individually transport and maintain a supply of fuel on their property, consideration should be given to establishing a central fuelling station on the island. The site selected shall:
i) be readily accessible from a main road;
ii) be in an area which future study reveals exhibits relatively low vulnerability to causing groundwater contamination;
iii) include provisions for secondary containment, pressure testing and groundwater monitoring; iv) include provision for above ground storage tanks only;
v) have an impermeable surface and site drainage catch basins so as to prevent petroleum products from draining off the site; and
vi) incorporate such other requirements as may be required to ensure the environmental safety of the site. e) Due to the risk of groundwater contamination, the use of underground storage tanks on the island shall be prohibited.
Derelict vehicles should not be permitted to accumulate on Savary Island and should be removed from the island (at the owners expense) so as to prevent groundwater contamination and rectify the unsightly condition they create. g) The open burning of garbage is prohibited by the Waste Management Act due to concern over the smoke and potentially hazardous fumes which may be emitted. It also increases forest fire risk.
7.4 Fire Protection
Fire protection is an important consideration in any community. On Savary, the condition of local roads, shortage of water in some locations and limited equipment and resources are some of the greatest challenges in fighting fire on Savary. Fire protection services on Savary Island have improved considerably in the past few years with the construction of a new fire hall/community hall in 1996 and a very pro-active fire protection and readiness approach by the volunteer fire department members.
Objectives - Fire Protection
1. To support efforts to make Savary a fire safe island.
Policies - Fire Protection a) Subject to financial and security constraints, fire fighting equipment should be stationed in various strategic locations on the island and effort made to train local residents on how to respond to the outbreak of fire and how to safely use early response fire fighting equipment. b) In locations where community water services are provided fire hydrant standpipes should also be provided at regular interval. c) In locations where standpipes for fire protection purposes are not provided, effort should be made to establish community water storage reservoirs at convenient locations throughout the island. d) The burning of open fires shall be prohibited during periods of high forest fire risk. A ban on campfires shall also be applicable to the foreshore. These requirements may be enforced by the Fire Commissioner's local designate to enforce such regulations. e) The Savary Volunteer Fire Department is encouraged to continue to take the lead in implementing a plan for community fire safety management on Savary. The plan should include provisions for:
- establishing a network of firebreaks across the island; - ensuring that a main fire truck route is designated on the island;
- educating island property owners on the fire hazard associated with the accumulation of dry underbrush on their property; and
- developing a series of emergency response plans in the event of a major fire in various part of the island. Section 8 Development Permit
Pursuant to Section 879 of the Municipal Act., a community plan may designate areas as development permit areas for, among other things, the protection of the natural environment and the protection of development from hazardous conditions.
For a property in a development permit area, no construction, alteration, or addition to a building or structure may take place prior to a development permit being obtained. In addition, a property in a development permit area may not be subdivided nor the land altered prior to a development permit being obtained.
As a condition of designating a development permit area in a community plan it is necessary to briefly describe the feature or site to be designated, state the objective to be achieved through designation and outline the guidelines to be complied with in the development permit area. The same format is used below to describe the development permit areas in the Savary Island Planning Area. These locations are also shown in map form in Schedule C (shown on the page opposite).
8. 1 Development Permits for Protection of the Natural Environment
DP-1 The Dunes:
A thick cover of sand dunes, now well stabilized by vegetation, is present along a 1.2 kilometre section of the island on the west half of D.L. 1375, between about Duck Bay and the west side of Beacon Point. The dunes, up to 15 metres thick, are covered in grasses and trees and trend in a markedly northwesterly direction. A second area of dunes is located in the vicinity of Big Meadow.
The dunes area can be relatively dynamic with shifting sand and migrating dunes. Although the tree cover which has become established on the dunes appears to be thinner than elsewhere on the island, this vegetation has had the effect of reducing the extent of the areas of sand dunes still currently active on Savary. There is a need to ensure the dune area is not disturbed or its current vegetative cover removed.
The high permeability of the sand dunes has caused them to be identified as a significant location where groundwater recharge to the main aquifer is occurring.
Objective
To preserve the island's sand dunes by limiting land development and ensure the dunes protective vegetative cover is retained.
Development Guidelines
1 . Effort should be made to limit construction in the development permit area to trails and utility works.
2. Any building or structure in the development permit area shall be located and constructed in a manner which endeavours to preserve the dune environment.
3. Care shall be taken to retain the current vegetation in the dune area.
4. The planting of grasses and erosion-resistant hedge vegetation should be provided for in areas prone to wind erosion in the sand dune area.
5. Public access in this area should be limited to designated trails so as not to unnecessarily promote an increase in soil erosion.
6. Other protective measures and structures intended to assist in stabilizing the dune environmental shall be permitted.
DP-2 Sunset Trail Area
This area is representative of a low bluff waterfront setting along the south west waterfront of Savary Island. A community trail referred to as Sunset Trail allows for public access along a section of upland which extends from near Indian Point to the west, all the way south and east to Salisbury Road. DP-2 includes the area known as Goose Pasture, the adjoining mud flats and a marshy area farther east. These areas and the adjacent foreshore are considered to be ideal waterfowl habitat. The section of Sunset Trail below the strata plan of Parcel B is located on Crown road dedication.
Objective
To retain representative environmental areas and ensure the flora and fauna they support are protected from the impact of land development
Development Guidelines
1 . All structures shall be setback at least 30 metres from the shore of the sea.
2. There shall be no disturbance of the vegetation or use of chemicals within 30 metres of the natural boundary of the sea except in accordance with any conditions specified in the permit.
3. Indigenous species shall be identified and their habitats protected from disturbance.
4. There shall be no alteration or disturbance causing a negative impact to the foreshore habitat.
5. The siting of residences and buildings shall be integrated with the surrounding landscape and ecologically sensitive areas shall be maintained in the vicinity of the trail area. 6. An assessment of the environmental impact, including mitigation measures required shall be required prior to any new developments or the expansion of an existing development.
7. Existing trees and vegetation shall be retained along the upland area and adjacent to the foreshore in order to maintain the habitat and prevent erosion.
8. Septic systems should not be constructed within 30 metres of the natural boundary of the sea.
DP-3 Indian Springs
Indian Springs is the largest of four springs on Savary Island. It serves as a source of water for many island residents and is recognized by the Ministry of Environment as a licensed source of water supply for several residents. The intent in designating this site as a development permit area is to ensure that development in the surrounding area is only undertaken in a manner which is cognizant of and endeavours to mitigate the potential impact on the spring as a community source of water supply. Ultimately, to properly protect Indian Springs, more of its catchment area may need to be protected.
Objective
To protect an important year round community source of potable water supply from the impacts of development.
Development Guidelines
1 . All structures shall be setback at 30 metres from Indian Springs.
2. There shall be no disturbance of the vegetation or use of chemicals within 30 metres of the springs.
3. An assessment by a hydrological engineer shall be required of the impact on the springs resulting from any development, including any excavation work, removal of vegetation or construction of a building within 100 metres of the spring location.
4. With the exception of improvements to the trail to the spring, existing trees and vegetation shall be retained in order to maintain the spring's natural setting and prevent erosion.
5. Septic systems should not be constructed within 100 metres of the spring.
6. The placement of works in or adjacent to the spring so as to improve its efficiency as a source of communal water supply shall be permitted, subject to the nature of the works being approved, by qualified authorities.
SAVARY ISLAND COMMITTEE
Sandy Challenor Ellen Kassian Dan McIntyre Grant Dinnage Ian Kennedy Gerry Massing Derek Hudson Paul Leighton Cecile Webber