Cobble Hill - Shawnigan Lake Community Profile: Shared Past, Common Future

Cobble Hill - Shawnigan Lake Community Profile: shared past, common future

South Cowichan OCP Background Study

December 2007

Cobble Hill – Shawnigan Lake Community Profile: Shared past, Common future

TABLE OF CONTENTS

1 Introduction 4 2 Location and Planning Area 6 3 Issues and Options: summary and overview 7 4 History and Heritage 18 5 Demographic Profile and Trends 21 6 Environment, Resources and Servicing 26 6.1 Environmentally Sensitive Areas 26 6.2 Riparian Areas 30 6.3 Marine Areas 33 6.4 Water Resources and Management 35 6.5 Agricultural Resources 39 6.6 Forest Land Resources 42 6.7 Fire Protection and Wildfire Interface 45 6.8 Aggregate Resources 48 6.9 Planning and Services 51 6.10 Natural Hazards 55 7 Land Use and Development 59 7.1 Residential Development 59 7.2 Affordable Housing 64 7.3 Village Centres (Shawnigan Village - Cobble Hill Village) 71 7.4 Institutional Uses 74 7.5 Transportation 76 7.6 Parks and Trails 80 7.7 Economy and Economic Development 83 8 Development Permit Areas and Current Zoning 87 9 To Learn More 92

Cobble Hill – Shawnigan Lake Community Profile: Shared past, Common future

TABLE OF FIGURES

Figure 1 Sensitive Ecosystems Map See Map Appendix Figure 2 Water Resources Map See Map Appendix Figure 3 Marine Coastline Map See Map Appendix Figure 4 Aquifers See Map Appendix Figure 5 ALR Land Map See Map Appendix Figure 6 Aggregate Resources Map See Map Appendix Figure 7 Water Service Areas Map 51 Figure 8 Sewer Service Areas Map 52 Figure 9 Steep Slopes Map See Map Appendix

1. Introduction

The Electoral Areas of Shawnigan Lake (B) and Cobble Hill (C) options were developed by the consultant team and include are working together with the Cowichan Valley Regional District relevant and replicable innovative planning policies and (CVRD) to create a joint Official Community Plan (OCP). The approaches used in other BC communities. These ‘Innovative South Cowichan OCP project will result in a single new OCP to Practices’ are highlighted in each section. guide development in each of the Electoral Areas for at least the next 10 years. The planning process was launched in early June 2007 and will continue through to early 2009.

To be developed with significant community involvement over the next year-and-a-half, the new OCP will include policies on a number of community issues, including land use, transportation, environmentally sensitive areas, parks, housing and economic development. The OCP will include a series of community- developed land use principles and development objectives for the planning area. It will also include plans for smaller sub-areas to preserve and enhance the distinct features and unique character of each community.

The Community Profile is a background report for the South Cowichan OCP. It provides an overview of current conditions in the planning area and establishes baseline data to assist with the review of existing OCP policies that may be carried over into the new South Cowichan OCP and development of new OCP policies.

The Community Profile also identifies and summarizes substantive planning issues that were identified by the consultant team while researching it. These issues are highlighted, as they may require additional attention during the planning process and/or were not identified in either Electoral Area’s earlier OCPs.

For each of the identified substantive planning issues, a set of corresponding responsive policy options is provided for consideration to be included in the South Cowichan OCP. The

Cobble Hill – Shawnigan Lake Community Profile: Shared past, Common future

2. Location and planning area

Electoral Area B (Shawnigan Lake), and Electoral Area C (Cobble Similar to Shawnigan Lake, Cobble Hill is largely rural residential. Hill), are located in the south-eastern section of Vancouver The small, 23.3 square kilometre Electoral Area includes a large Island. Together, the two areas total 323 square kilometres, amount of Agricultural Land Reserve (ALR) lands and there is a stretching from the eastern shores of Vancouver Island up into significant farming community, including a growing number of the middle of the Island and include large portions of the fertile wineries and specialty organic growers. The ALR acts as a land Cowichan Valley. As illustrated by the map on the next page, the use boundary of sorts, with residential development clustered in planning area is bounded by Electoral Area F and the Capital several smaller, non-ALR areas located primarily in the south Regional District to the west, Electoral Areas E and D to the east portion of the Electoral Area. north, Electoral Area A and the Capital Regional District to the south, and Electoral Area A and the Saanich Inlet to the east. Higher density, small-lot development can be found in Arbutus Ridge, a gated 55+ golf community located at Hatch Point on the At 300 square kilometres, Shawnigan Lake is the larger of the Saanich Inlet. Arbutus Ridge is home to over 1,000 residents. two Electoral Areas. It includes large tracts (over 27,000 hectares) of mature second growth forests that account for over Cobble Hill Village is Electoral Area C’s historic commercial centre 85% of the land area. The remaining area is predominantly rural and is located in the south-west corner of the Electoral Area. residential in nature and clustered primarily around beautiful Cobble Hill’s population density is 200.1 people per square Shawnigan Lake itself. Smaller, rural residential areas are located kilometre (Census 2006), making it the densest of CVRD’s in the Koksilah River area (Hillbank Road, Riverside Road and electoral Areas. The population of Cobble Hill was just over 4,500 Kingburne Drive) and Royce Road/Campbell Road. Shawnigan in 2006 (Census 2006). Village, the Electoral Area’s small commercial centre, is located near Shawnigan Lake. A relatively small number of farmlands are clustered primarily in the north-east corner and the Cowichan River Valley. The majority of this farmland is in the provincial Agricultural Land Reserve (ALR).

With its largee proportion of forest lands, Shawnigan Lake’s population density is only 24.7 people per square kilometre (Census 2006), which is amonng the least dense of CVRD Electoral Areas. The population of Shawnigan Lake was just over 7,500 in 2006 (Census 2006).

Both Cobble Hill and Shawnigan Lake are rural communities with significant forest and farm land. Source: Film Cowichan

Cobble Hill – Shawnigan Lake Community Profile: Shared past, Common future

Location Map

Cobble Hill – Shawnigan Lake Community Profile: Shared past, Common future

3. Issues and Options: summary and overview conservation as an important planning concern that is This section highlights and summarizes substantive planning directly linked to the preservation of rural qualities in issues that were identified by the planning consultant team both Electoral Areas. during the development of the planning area community profile. 2) The South Cowichan OCP should consider including The issues were highlighted as they may require additional policies to take advantage of existing Provincial Heritage attention in the planning process and/or were not identified in Branch (Ministry of Tourism, Sport and the Arts) heritage either Electoral Area’s earlier OCPs. programs. Namely:

a. A policy to articulate the heritage values of the The issues are organized in the same general subject areas as planning areas and to develop broad cultural are used in the Community Profile and are listed in the same heritage preservation and protection goals for order. For each issue area, a set of responsive policy options the planning area (80% funding up to $10,000 and actions is provided for consideration to be included in the available from Heritage Branch). new South Cowichan OCP. b. A policy to develop a community heritage

register (an official listing of places that are It is expected that the planning issues and the corresponding recognized for their heritage value) that is policy options and actions will be evaluated, refined and consistent with national documentation standard prioritized by the CVRD planning team, the Community Advisory (100% funding up to $20,000 available from Committee and the two Local Advisory Committees. This list Heritage Branch). should not be considered complete as new issues may arise or be identified during the planning process. 3) The South Cowichan OCP should consider including a policy to formalize and establish closer working For additional information, please go to the corresponding relationships with the planning area First Nations to section number listed next to each issue area. ensure that any new cultural heritage policies respect and include important First Nations heritage sites that CULTURAL HERITAGE (4) may not be currently protected, and to recognize the There appears to be an obvious need to better address the long history of First Nations in the planning area. identification, preservation and protection of cultural and heritage resources in the new South Cowichan OCP. While ENIVRONMENT, RESOURCES AND SERVICES greatly valued by community members, the rural heritage and ENVIRONMENTALLY SENSITIVE AREAS (6.1) history of both Electoral Areas B and C is neither well-protected, Ecologically, the planning area is both one of the most diverse in nor highlighted in their existing OCPs. The following Canada and one of the most threatened by development recommendations are made to address this issue: pressure. Almost all forested ecosystems within the ecozone are 1) A specific Cultural Heritage section should be included in provincially red- or blue-listed, meaning they are endangered or the new South Cowichan OCP to elevate heritage threatened, and qualify for Environmentally Sensitive Area (ESA)

Cobble Hill – Shawnigan Lake Community Profile: Shared past, Common future

classification using the federal Sensitive Ecosystem Inventory 1. Riparian areas, including streams, lakes and wetlands, (SEI). Several rare wildlife and plant species also occur within must be buffered from development as per the RAR. A these ecosystems, including Garry oak meadows, but are being default 30 m setback or Streamside Protection and threatened and often out-competed by aggressive, invasive plant Enhancement Area (SPEA) will be employed. A QEP may and animal species. To help protect and preserve ESAs in the be retained to complete a RAR assessment and reduce planning area, the following recommendations should be the size of the SPEA when the proposed development considered for the South Cowichan OCP: must intrude within the setback.

1. The CVRD should incorporate Sensitive Ecosystem 2. As stream mapping in the study area is limited, the Inventory (SEI) mapping into the South Cowichan OCP. presence of streams on a property must be assessed and confirmed using best available knowledge, contours and 2. Where SEI polygons are identified in a proposed mapping. Where there is any question, a QEP must be development location, a Qualified Environmental retained to assess the presence or absence of Professional (QEP) must be retained to assess the watercourses, and to follow the methodologies set out location, quality and accuracy of the polygon. by the RAR. 3. Development must be located away from the sensitive 3. Land use and development, including solid and liquid ecosystem wherever possible, or mitigation measures waste management, should be conducted in such a way must be recommended to ensure persistence of the as to maintain and protect water quality and, where ecosystem. possible, improve it. 4. All forested areas not used for forestry related activities should be assessed by a QEP to determine if listed MARINE AREAS (6.3) ecosystems or rare elements are present. Steps must be Shorelines and ocean front properties are highly sought after in taken to ensure connectivity of ecosystems and retention the planning area. These areas can also be highly sensitive to of critical habitat for rare species. development pressures. Currently, water use zones in Electoral Areas B and C address marine issues by defining four zones from 5. In forestry designated land (currently F-1 and F-2 zones), private and community use, to public and commercial use. To QEP assessment of non-forestry related development as further protect and manage marine shore areas, the following designated by the Zoning Bylaw is recommended. policy recommendations should be considered for inclusion in the

South Cowichan OCP: RIPARIAN AREAS (6.2) While the Ministry of Environment’s 2006 Riparian Areas 1) Minimize the impact of development to the natural Regulation (RAR) has helped protect sensitive riparian areas environment, including the foreshore and riparian through default setbacks from watercourses and water bodies, vegetation. riparian areas remain a threatened resource requiring ongoing 2) Consider establishing marine/shoreline Development protection. To help protect and preserve riparian areas in the Permit Area. planning area, the following recommendations should be considered for the South Cowichan OCP:

Cobble Hill – Shawnigan Lake Community Profile: Shared past, Common future

3) Marine development, including wharves, docks and 2) Land use and development, including solid and liquid associated buildings should be strictly controlled and, waste management, should be conducted in such a way where permitted, designed to reduce impact to the as to maintain and protect water quality and, where ocean floor, foreshore and upland habitat areas. possible, improve it. Stormwater management should be planned to avoid direct impact to marine areas. 3) Water users, local and provincial governments should work together to coordinate water management 4) Encourage stewardship activities including shore cleanup, softening shorelines by incorporating native vegetation, 4) As permitted by the Local Government Act, maximum and reducing the use of pesticides, household cleaners impervious area limitations (as a percentage of total and other chemical-based products. property area) should be established residential zones.

5) Septic tanks should be properly maintained and emptied 5) The development of Well Protection Plan such as those regularly. carried out for the Braithwaite, Cobble Hill and Millar systems should be encouraged in other areas. 6) Recreation should suit the characteristics of the shoreline.

Passive recreation is encouraged. AGRICULTURAL RESOURCES (6.5) 7) Ensure proper coordination and cooperation between Agriculture is a major land use in the planning area. It is one of appropriate legislative bodies to assist in comprehensive the region’s main economic activities and is an important management of marine areas. component of the planning area’s rural identity. The following policy options should be considered for the new South Cowichan WATER RESOURCES & MANAGEMENT (6.4) OCP: Currently, there is no coordinated management of surface and 1) ALR land removals should not be permitted without clear groundwater at either the watershed or aquifer level in the demonstration that the parcel in question does not have planning area. Developing coordinated management will result in the capability to support agriculture. more efficient water use planning and lessen potential future conflicts by planning and managing for increased consumption 2) Recognizing that increased development in the region needs (population growth) and potentially decreased supply will inevitably place residential areas closer to farms, (climate change). The South Cowichan OCP should consider the buffer zones and set-backs should be considered to following water management policy recommendations to help minimize conflicts. ensure that water resources are conserved and managed in an 3) Farmers and representatives from the agricultural equitable manner: industry should be encouraged to participate in local 1) The OCP should recognize current and project future commissions and other community committees to water use and guide development in such a way as to provide input from the agricultural community.

provide or maintain adequate supplies of safe drinking 4) The CVRD should encourage the Ministry of Agriculture water for residents while protecting stream flows and and Foods to finalize and implement legislation aimed at lake and wetland levels required for wildlife and fish. protecting riparian areas in the ALR.

Cobble Hill – Shawnigan Lake Community Profile: Shared past, Common future

5) The CVRD should work with the Cowichan Region have the potential to develop into catastrophic wildfires of a Economic Development Commission (CREDC), the Island scale and intensity beyond the range of historical variability. The Farmers Association, Shawnigan Cobble Hill Farmers following policy options should be considered for the new South Cowichan OCP: Institute and the Cowichan Valley Smallholders Society to encourage and facilitate the further development and 1) The CVRD and Electoral Areas B and C should work in diversification of the farm sector including support of concert with provincial and local fire protection agencies marketing initiatives such as agri-tourism, farm-gate to develop wildfire risk reduction strategies and policy as sales and farmers’ markets. part of the OCP’s public safety section. To reduce the threat of interface fires, mitigation strategies must FOREST LAND RESOURCES (6.6) address: Forestry has played a major and defining role in the history and a. Vegetation (fuel) management; economic development of both Electoral Areas, particularly b. Building construction and design; Shawnigan Lake. While forestry is no longer the economic force c. Infrastructure (including local government it once was, the private forest lands of Shawnigan Lake planning tools, i.e., Development Permit Areas represent both a major environmental resource and considerable for Wildfire); and, economic development resource for future forestry. While an d. Public education and awareness. OCP is not the main policy vehicle required to revitalize the forest industry, the following recommendations are presented for 2) New development should not encroach further into consideration to be included in the South Cowichan OCP wildfire areas, as identified by wildfire hazard mapping.

1) Recognize the long-term economic development AGGREGATE RESOURCES (6.8) potential represented in working forest lands and limit Aggregate resources (sand and gravel) are a finite, non- rural encroachment on it by limiting rural development renewable commodity that is essential for construction and subdivision. maintenance of infrastructure. While aggregate extraction is

2) Support emerging value-added and community-based noisy, dusty and visually offensive to some, the availability of forest use applications, including, but not limited to, near surface aggregate materials must be conserved and community-owned woodlots, eco-forestry enterprises managed in an equitable manner. To lessen community and and small, home-based, value-added forest product environmental impacts and to protect these critical reserves for manufacturing. the future, the following policy options should be considered for the new South Cowichan OCP:

FIRE PROTECTION AND WILDFIRE INTERFACE (6.7) 1) Protect lands with aggregate potential from development Growth pressures in the South Cowichan OCP planning area are that would render it unviable or inaccessible by pushing development further into the wildland urban interface designating aggregate potential lands for resource zone. Advanced fire suppression efforts in the last fifty years extraction. have resulted in high levels of fuel loading in interface areas. 2) Use detailed aggregate resources investigations to more From the standpoint of community fire protection, interface fires accurately define the aggregate potential of a property

Cobble Hill – Shawnigan Lake Community Profile: Shared past, Common future

before the land is designated for uses other than 4) Include measures of density, distance from existing resource extraction. services, dispersion/continuity, and diversity of use in the

3) Encourage the Ministry of Energy, Mines and Petroleum creation of Development Cost Charges (DCCs) for the Resources to consult with local government and land planning area and link the Urban Containment Boundary (UCB) should one be developed. owners and to provide due consideration on the possible impacts to neighbouring land and the natural 5) The CVRD should consider joining the Partners for environment prior to initiating new mining operations or Climate Protection (PCP) program, with the intent to link re-establishing existing pits. Particular attention should climate change actions to other sustainable, smart be paid to the impacts of resource removal on the growth initiatives such as compact development and quantity and quality of surface and groundwater, alternate transportation. residential development, and traffic volumes.

4) Minimize conflicts between extraction activities and NATURAL HAZARDS (6.10) adjacent land users and minimize the impact of Floodplains and steep slopes are the two most significant natural extraction activities on the natural environment by hazard areas where development should be strictly controlled limiting extraction and processing to land where such and/or prohibited. The South Cowichan OCP should consider the following natural hazard policy recommendations: operations already exist. 1) The OCP should address any new development on any PLANNING AND SERVICES (6.9) active floodplain that is not already protected by existing Services and infrastructure form the backbone of communities. regulation or by law. One issue not so addressed is the Servicing requirements (including costs, location and phasing) effect of forestry or agricultural activities on floodplains. must be considered during the creation of an Official Community 2) The OCP should consider reviewing the state of existing Plan. While the current OCPs contain reasonable policy directions, SEI mapping to ensure that it covers active floodplains in the following recommendations are presented for consideration the area and to ensure that the floodplains associated to be included in the South Cowichan OCP: with small watercourses or lakes are sufficiently 1) Create an Urban Containment Boundary (UCB) for identified and protected.

Electoral Areas B and C based on serving requirements 3) Slopes greater than 20% should be assessed by a and costs and, should one be developed, tie professional geotechnical engineer prior to development. Development Cost Charges to it. 4) Existing vegetation on slopes should be retained to 2) Review, amend and implement the South Sector Liquid prevent erosion. Large groups of trees should be Waste Management Plan for Electoral Areas A, B and C considered for retention. using a phased approach. 5) Slope hazard areas identified in Figure 9 should be 3) The CVRD should develop financial incentives for assessed to ensure that slopes are appropriate and that residents and businesses to reduce waste. no further assessment is required.

Cobble Hill – Shawnigan Lake Community Profile: Shared past, Common future

6) Development planning should consider both human LAND USE AND DEVELOPMENT safety and environmental protection into planning for RESIDENTIAL DEVELOPMENT (7.1) slopes. Run-off and stormwater management should be Land and housing are inseparable from community viability. Well- included in all development plans situated on steep balanced communities have housing opportunities for people slopes to divert drainage away from areas that may be from all age groups, life stages, family types, lifestyle choices, prone to slumping or erosion. financial situations, and special needs. The following policy 7) Rock outcrops, cliffs, significant trees and watercourses recommendations are presented for consideration to be included should be identified using other mapping sources. Should in the South Cowichan OCP: they occur on slopes, then these must also be considered for protection prior to development. 1) Contain urban residential development within a designated Urban Containment Boundary with urban 8) Wherever possible, buildings should conform to the levels of service. topography of the slope, rather than rely on the creation of artificial benches. 2) Buffer rural residential development from forestry, agricultural, commercial and industrial uses.

3) Promote development that coordinates residential growth with infrastructure, public transit, amenities, and commercial services.

4) Identify opportunities/strategies to provide affordable or special needs housing through inclusionary zoning developments, density bonussing programs, partnerships, or other appropriate means.

5) Allow secondary units in the form of duplexes or secondary suites wherever there is capacity to do so and where supported by appropriate infrastructure.

6) Encourage the inclusion of employee housing where commercial developments are compatible with residential uses and likely to require a number of employees, such as resorts or schools.

7) Allow officials to require an environmental and/or social impact study to provide information regarding the impact of any large development proposal.

Cobble Hill – Shawnigan Lake Community Profile: Shared past, Common future

AFFORDABLE HOUSING (7.2) 5) Recognize and support Social Planning Cowichan’s Currently, affordable housing is not sufficiently addressed in recently completed affordable housing study, specifically either Electoral Area’s current OCPs. As a critical component of its recommendations to: community liveability, affordable housing, or more specifically a a. Develop a CVRD Growth Strategy that includes lack of affordable housing in both communities, should be an affordable housing component; and addressed in the new OCP. Both communities need to diversify b. Establish an action oriented Cowichan Valley their housing stocks and expand the rental market. The following Affordable Housing Council that brings together policy recommendations are presented for consideration to be local housing groups, developers and municipal included in the South Cowichan OCP: representatives to advocate for affordable housing. 1) A specific Affordable Housing section should be included in the new South Cowichan OCP to elevate and establish 6) Develop policies to explore the following innovative the topic as an important planning concern. The section practices: Housing Reserve Funds, Partnerships for should include a policy confirming the need for housing Housing Development, Monitoring Housing Stock, Land suitable for a broad range of household types and Banking, Using Land Owned by a Local Government and income groups, and a formal definition of affordable Zoning for Smaller Lots. housing and non-market housing.

2) Strengthen the provisions for developing affordable VILLAGE CENTRES: SHAWNIGAN VILLAGE AND COBBLE housing in existing zoning and policies that may be HILL VILLAGE (7.3) carried over to new OCP (i.e. Density Bonussing, Housing More sustainable and complete rural communities tend to be above Shops, Secondary Suites, Zoning for Manufactured centred around pedestrian-friendly village or town centres where Homes, Rural Community Residential DPA, etc.). a wide variety of commercial retail services, institutional uses and residential uses are clustered. These centres function as 3) Consider relaxing minimum lot size, allowable density community focal points and play an important economic, social, and the multi-family development restrictions in existing cultural and recreational role in the life of these areas. To help R-3 (Urban) Residential Zones in both Cobble Hill and revitalize and direct new commercial and residential development Shawnigan Lake to help create a better policy enabling to Cobble Hill Village and Shawnigan Village, the South Cowichan environment for affordable housing development in OCP should consider the following policy recommendations: these zones. 1) Establish clear development objective policy goals for 4) Include scale and character restrictions in revised R-3 both village centres that better reflect the community’s (Urban) Residential Zones to help ensure that the current emerging aspirations and priorities for managing growth. character and charm of existing communities is Some overarching policy goals could include: maintained and to help encourage suitable, compact a) Retaining the village character by drawing a firmer housing solutions, like small single family, duplex and line between urban and rural areas, so that one can one or two storey townhouse projects. see clearly the edge of the villages, and less sprawl.

Cobble Hill – Shawnigan Lake Community Profile: Shared past, Common future

b) Focusing urban growth in the existing communities INSTITUTIONAL DEVELOPMENT (7.4) to curb rural sprawl thus preserving forest and Institutional uses are an important part of both Electoral Areas, agricultural lands and rural areas outside of the providing educational, recreational, cultural benefits and villages. opportunities. Providing opportunities to participate in passive, or c) Maintaining vibrant village communities by active cultural and leisure activities is an effective way for encouraging new forms of commercial development communities to promote a positive environment where with residential above, encouraging mixed use, community members can interact. The following options are improving pedestrian linkages and creating places for should be considered for the new South Cowichan OCP:

people to gather. 1) A separate Community Resources section should be d) Encouraging walking and cycling by developing included in the new South Cowichan OCP to include better pedestrian and bicycle routes into and within policy directions on institutional uses, community well- the village core areas, areas within the villages for being, leisure and culture. people to meet and sit, outdoor public spaces, bike racks and landscaping. 2) Maintain and enhance participation, life experience, well- e) Implementing new servicing, particularly sewerage, being and quality of life for all community members to support growth within the villages. through partnerships with local institutions in the planning area that optimize the use and development of 2) Review and consolidate the large number of zones in existing institutions. both village areas to simplify development and to permit and encourage more mixed use, to concentrate multi- 3) Continue to encourage School District #79 to carry on family housing in village core areas, and to be consistent making school buildings and adjacent school ground with a desire to focus urban growth in the existing properties available for recreation, cultural activities, communities and preserve forest and agricultural lands. community activities and educational programs during non-school hours. 3) Encourage and facilitate the development of a more consistent, safe and high quality public realm in both 4) Recognize, support and enhance leisure and culture as village areas through the use of wide, pedestrian-friendly vital aspects of community life, including lifelong sidewalks complete with curbs and gutters (assuming a learning, recreation, community events, and arts and storm water sewer system is in place), narrower culture.

roadways and improved pedestrian and bicycle 5) Continue to support the Shawnigan Cobble Hill Farmers’ connections to and through village centres. Institute in its continued evolution and participate in any

4) Review, revise and carry over the urban design scheme redevelopment that may occur on the site.

included in Background report to the Cobble Hill Village 6) To create more security in the planning area and in Neighbourhood Plan into the new Cobble Hill plan. keeping with provincial trends and precedents, new institutional uses should not be permitted outright in the planning area and require an official amendment to the OCP.

Cobble Hill – Shawnigan Lake Community Profile: Shared past, Common future

TRANSPORTATION (7.5) secondary highways and major arterials and to limit such Transportation is a major planning issue, particularly in the access on secondary highways. development of more sustainable communities that support a 8) Augment public transit service in conjunction with wide range of transportation choices, including public transit, car projected population growth and the concentration of sharing, car and van pooling, and more active modes of such growth in specified areas, in particular village transportation like cycling and walking. The South Cowichan OCP centres. should consider the following transportation policy recommendations: 9) Encourage the development of a commuter rail service to support the region’s sustainability goals and to provide a 1) Review, update and expand policies that encourage the viable alternative to the automobile. Ministry of Transportation to design, construct and maintain roads to accommodate cyclists (i.e., wider shoulders, marked lanes, signage, etc.). PARKS AND TRAILS (7.6) Publically accessible green spaces are an important component in 2) Consider planning and implementing a capital the development of more sustainable, complete communities. construction program for widening the shoulders of some While both Electoral Areas contain a number of regional and major rural roads to accommodate pedestrian walking community parks, there appears to be a need to better link areas. them. There is also a need to acquire new key park properties, 3) Consider planning and implementing a capital particularly along the shores of Shawnigan Lake and to improve construction program for installing separated sidewalks beach and ocean access along Cobble Hill’s ocean front. The in the two villages, with a raised curb and, where following policy options are presented for consideration to be appropriate, a separation barrier between the roadway included in a revised and expanded Parks, Trails and Open Space and the sidewalk. section:

1) The South Cowichan OCP should provide supportive 4) Increase the number of bicycle routes and develop policies and designations in the concurrent development dedicated bikeways where practical and feasible to of the Community Parks and Trails Master Plan which will support the region’s sustainability goals, by providing a outline objectives and priorities for community park land viable alternative to the automobile. acquisitions in the CVRD, including Shawnigan Lake and 5) Maintain and enhance connections for both drivers and Cobble Hill. Additions and revisions to this plan should be pedestrians across the Trans Canada Highway, while made where necessary. ensuring safety. 2) The South Cowichan OCP should support the 6) Restrict direct access onto the Trans Canada Highway identification, acquisition and development of multi- from adjacent properties, and consider prohibiting purpose trails to improve non-automobile connections in additional new development fronting onto the highway. the planning area.

7) Amend the area’s Subdivision Servicing Bylaw to 3) The potential need for additional active outdoor establish guidelines for residential driveway access onto recreation areas (i.e., sports fields) should be explored

Cobble Hill – Shawnigan Lake Community Profile: Shared past, Common future

and supportive OCP policies should be developed where c) Expanding and improving local services to reduce the necessary and practical. number of shopping trips out of the community d) Better diversifying local tax requisition to reduce 4) The South Cowichan OCP should support the continued reliance on residential taxes. development, expansion and formalization of community involvement in parks development and acquisition and 3) The South Cowichan OCP should include clear and park stewardship activities in both Electoral Areas. coordinated policies on service commercial development along the Trans Canada Highway and major arterials to ECONOMIC DEVELOPMENT (7.7) strictly limit this type of development in the planning Currently, economic development is not sufficiently addressed in area. either Electoral Area’s current OCPs. As a critical component of 4) The CVRD should develop clear and coordinated policies community sustainability and liveability, the South Cowichan OCP to support the intensification of commercial activities in should raise the profile of economic development and include existing village centres. integrated policies on the issue. Respecting that both Electoral Areas are predominantly rural residential communities with 5) The CVRD should work to develop and adopt clear, limited commercial and industrial development, and that both are simple and supportive polices for the large number of located within easy commuting distance of major Island home-based businesses located in the planning area. If employment centres, the following options are presented for licensing and permitting is considered, a single approval consideration to be included in the South Cowichan OCP: process should be adopted for both Electoral Areas

1) A specific Economy and Economic Development section

should be included in the new South Cowichan OCP to DEVELOPMENT PERMIT AREAS AND CURRENT ZONING (8) elevate economic development as an important planning Currently, the CVRD has one of the most well-developed DPA concern that is directly linked to community sustainability programs in the province. Both Shawnigan Lake and Cobble Hill and quality of life in both Electoral Areas. use them extensively to shape development on a site-specific 2) The South Cowichan OCP should consider including basis to realize the goals and objectives set out in each policies to work more closely with the Cowichan Region community’s current OCP. The DPA and zoning regimes could, Economic Development Commission (CREDC) with however, be further developed and expanded. The following respect to: options are presented for consideration to be included in the a) Prioritizing the types of development they wish to South Cowichan OCP: encourage in the area based on industry sectors 1) Strengthen existing DPA guidelines by including more used by the CREDC (i.e. forestry, retail, agri-food, detail and adding diagrams and images. education, film and tourism). b) Better support of and coordination with existing agri- 2) Consider designating Urban Containment Boundaries food producers to make locally grown and produced (UCBs) in the OCP around existing neighbourhood products available from the farm gate, in planning centres (Shawnigan Village and Cobble Hill Village) and area restaurants, food stores and tourist venues.

Cobble Hill – Shawnigan Lake Community Profile: Shared past, Common future

set targets for the percentage of development that will occur within the UCBs.

3) Develop land use planning targets for each chapter of

the OCP to establish measurable goals.

4) Consider designating some parcels of land within UCBs as appropriate for Comprehensive Development Zones, in particular Shawnigan Village and Cobble Hill Village.

5) Continue development of CVRD Board-mandated,

sustainability-driven development checklist or scorecard

for evaluation applications.

6) Develop a straight forward impact assessment process in DPA guidelines.

7) Revise the DPAs for protection of the natural

environment to be based on the ecosystem types set out

in the Eastern Vancouver Island and Gulf Islands

Sensitive Ecosystems Inventory and map codes;

8) Explore the benefits of enacting regulatory bylaws to supplement the enforcement of DPAs.

Cobble Hill – Shawnigan Lake Community Profile: Shared past, Common future

4. History and Heritage

Human settlement in Shawnigan Lake and Cobble Hill dates back over 4,000 years to the Quw'utsun' people who fished, hunted and had several seasonal villaages in the area. Drawn by the area’s abundant natural resources, homesteaders from Europe, the United States and other parts of Canada began to arrive in the Cowichan Valley in the late 1840s. In 1858, Royal Engineers of the British Admiralty surveyed the area (despite some A history tied to the railroad: the old Strathcona Hotel on Shawnigan resistance from the Quw'utsun' people) into large sections. Lake (ca. 1900) and the Wilton Place Hotel Source: BC Archives

Commercial logging followed the homesteaders and quickly became the region’s major economic activity. Logging camps and With the completion of the railway, Shawnigan Lake grew into a sawmills were scattered throuughout the Shawnigan Lake and minor resort destination for Victoria residents. A large number of Cobble Hill area. Mining (copper and coal) and fishing were also cottages were built along its shores alonng with hotels for important economic activities. weekend and summer holiday makers. While the hotels no longer exist, many historic lakeside cottages remain and the area is still Later arrivals to the area included workers from China, India and a popular recreation destination for Victoria- and Nanaimo-area Japan, who came to work in the logging and mining camps and residents and other mid-Island residents. to help build the Esquimalt & Nanaimo railway (E&N Railway). Built by coal baron Robert Dunsmuir, the railway helped Over the years, the population and economic activity in Cobble connected the region to Victoria and Vancouver Island’s Hill and Shawnigan Lake have ebbed and flowed with global commercial and administrative centre in 1886 and was used to events. The onset of World Wars I and II led to increased transport timber and other resources to the ports there. logging and an influx of forest labourers into the area, while the Prime Minister John A. MacDonald drove the last railway depression years between the wars saw the closure of many spike of the E&N Railway on the east side of Shawnigan mills and a decrease in logging. Lake at Cliffside, during his only visit to British Columbia. While neither Shawnigaan Lake nor Cobble Hill developed towns on the scale of nearby Duncan, Ladysmith or Chemainus, smaller, region-serving villages developed in both areas. Cobble Hill Villagee in particular grew to become a bustling overnight stop for the E&N railway complete with a large hotel (The Wilton Place Hotel), bank, telephone office, creamery, feed store, blacksmith, bakery and other businesses.

Cobble Hill – Shawnigan Lake Community Profile: Shared past, Common future

The Wilton Place Hotel burned to the ground in 1942 and was community with golf course was developed at Arbutus Ridge in never replaced, but the villagee nevertheless remained the main the early 1990s. It is now home to over 1,000 residents (Census service centre for the area’s many farms. This changed in the 2006). early 1950s, when the Vancouver Island section of Highway 1 (Trans Canada) was completed. The highway bypassed Cobble Current Situation Hill Village and took with it much of the traffic and freight formerly carried by the railway. While the output of farms in Heritage designation in both Shawnigan Lake and Cobble Hill is Cobble Hill declined, to this day farming and agriculture remain considered a provincial responsibility. As such, neither Electoral an important component the local economy. Area has identified or mapped heritage and cultural assets.

Successive improvements to the Trans Canada Highway have The existing Shawnigan Lake OCP (Section 5 – Cultural or shortened driving times to the Island’s principal employment and Natural Heritage Resources), includes eight general policies on retail centres in Victoria and Nanaimo. The transportation heritage preservation. The OCP recognizes the Kinsol wooden improvements, combined with limited economic growth in either trestle across the Koksilah River and the stone cairn at Cliffside Electoral Area, has gradually led to both areas becoming (marking the location of the last spike on the E&N Railway) as bedroom communities to Victoria, Nanaimo, Duncan and other significant cultural sites that should be recognized by the larger, nearby centres. Province. In January 2000, a Text and Plan Amendment was made to designate the Shawnigan United Church as a heritage Recently, the agri-food industry has expanded and diversified property. with the arrival of wineries and specialty and organic food producers. The planning area’s rural scenery, excellent climate Heritage preservation tools are limited by the lack of a heritage (purportedly the mildest in Canada), ocean and beach access, inventory, which makes proactive preservation and protection and rural charms have also led to an increase in regional tourism. activities difficult. Even so, Policy 5.8 requests that the CVRD Board: Given its amenities, climate and easy access to larger centres, both Cobble Hill and Shawnigan Lake have recently attracted an “consider relaxation or amendment of any policy in the increasing number of retirees. A large, 55+ residential Plan if so doing would encourage or enhance the economic viability or symbolic value of the Heritage property.”

In Cobble Hill’s current OCP, heritage conservation is dealt with in the section on Environmentally Sensitive Areas (Part Three – Natural Environment, Section 3.2). Policy 3.2.4 requests that the CVRD Board:

Forestry has long been a mainstay of the region: a saw mill on Shawnigan Lake (ca. 1915) and loggers with their haul on an early logging truck (ca. 1920) Source: BC Archives 19

Cobble Hill – Shawnigan Lake Community Profile: Shared past, Common future

“encourage the Heritage Conservation Branch to a. A policy to articulate the heritage values of the investigate any site suspected of having historic planning areas and to develop broad cultural significance prior to subdivision or development.” heritage preservation and protection goals for the planning area (80% funding up to $10,000 The OCP identifies Cobble Hill Mountain, Cobble Hill Cenotaph, available from Heritage Branch). Cobble Hill Village Area, the Dougan Cemetery and William b. A policy to develop a community heritage Chapman Memorials as being significant cultural or natural register (an official listing of places that are heritage sites. recognized for their heritage value) that is consistent with national documentation standard Summary of Recommendations (100% funding up to $20,000 available from Heritage Branch).

The history of development in Electoral Areas B and C has 3) The South Cowichan OCP should consider including a greatly influenced the current physical form and layout of the policy to formalize and establish closer working two communities. This in turn helps sustain the much valued relationships with the planning area First Nations to rural lifestyle and heritage feel of the Electoral Areas. Given the ensure that any new cultural heritage policies respect underlying importance of heritage values to both communities, and include important First Nations heritage sites that there appears to be an obvious need to better address the may not be currently protected, and to recognize the identification, preservation and protection of cultural and long history of First Nations in the planning area. heritage resources in the new South Cowichan OCP.

After a review of existing documents, Electoral Area B and Electoral Area C should consider the following while developing a specific Cultural Heritage section in the new South Cowichan OCP:

1) A specific Cultural Heritage section should be included in the new South Cowichan OCP to elevate heritage conservation as an important planning concern that is directly linked to the preservation of rural qualities in both Electoral Areas.

2) The South Cowichan OCP should consider including policies to take advantage of existing Provincial Heritage Branch (Ministry of Tourism, Sport and the Arts) heritage The E&N Railway was long the backbone of the area’s transportation programs. Namely: network. Pictured is the ‘Duchess’ locomotive near Cobble Hill (ca. 1890) and Shawnigan Lake as seen from the track (ca. 1890) Source: BC Archives

Cobble Hill – Shawnigan Lake Community Profile: Shared past, Common future

5. Demographic Profile Cobble Hill: Based on 2006 census figures, Cobble Hill currently has a population of 4,530. With a significantly smaller land base This section provides a demographic profile of the planning area than Shawnigan Lake (23.3 square kilometres versus 300 square and highlights important population trends that should be kilometres), this translates to a population density of 200.1 considered during the South Cowichan OCP planning process. people per square kilometre (Census 2006), the most densely populated Electoral Area in the CVRD.

Current Situation It is worth noting that the Arbutus Ridge development -- a gated, 55+ retirement community located at Hatch Point on the Saanich Shawnigan Lake: As of the 2006 census, the population of Inlet -- is a major contributing factor to Cobble Hill’s overall Shawnigan Lake stood at 7,562 residents. Given the large population and population density. Arbutus Ridge is home to amount of unpopulated forest lands in the Electoral Area, over 1,000 residents in 5711 residences and accounts for nearly Shawnigan Lake’s current population density is only 24.7 people a quarter of Cobble Hill’s total population. Constructed on just per square kilometre (Census 2006), among the least dense of 1.47 square kilometres, Arbutus Ridge alone has a density of CVRD Electoral Areas. 685.3 residents/ square km.2

The age profile of Shawnigan Lake is characterized by a relatively The age distribution of Cobble Hill’s population reveals a young distribution of its population, especially when compared relatively elderly population that is well above the national with Cobble Hill’s distribution profile, but also when compared average. In comparison to Shawnigan Lake’s relatively young age with CVRD and provincial figures. There is a low ratio of profile, the ratio of residents 65+ to younger age cohorts and the population aged 65 and older, as compared to the 0-14 and 15- median age in Cobble Hill is higher than regional and provincial 65 age cohorts. averages. The percentage of residents in the 20 to 44 working age (20.5%) range is low. Again, this is largely dominated by At 40.2, the median age of the Shawnigan Lake population is 55+ age composition in the Arbutus Ridge subdivision. well below the regional average of 44.4. Putting this into context, the high median age in the CVRD is consistent in both the neighbouring Nanaimo Regional District (46.6) and the Capital Regional District (43.6), both of which also display higher than average median age rates when compared to both provincial and national averages.

Finally, with almost 31% of its population falling between the ages of 20 and 44, Shawnigan Lake has a relatively young working age population. 1 As reported in the 2006 census. According to representatives of the Arbutus Ridge subdivision, 616 lots are presently occupied. 2 http://www12.statcan.ca/english/census06/data/popdwell/Table.cfm?T =1301&S=1&O=A#FootDPLType Accessed August 16th, 2007

Cobble Hill – Shawnigan Lake Community Profile: Shared past, Common future

Figure: Shawnigan Lake Age & Sex Distribution Profile – 2006 Census

1000 800 600 400 Total Population 200 Male 0 Female

Age

Figure: Cobble Hill Age & Sex Distribution Profile – 2006 Census 500 400 300 200 Total Population 100 Male 0 Female

Age

Cobble Hill – Shawnigan Lake Community Profile: Shared past, Common future

Trends Growth rates from the 1996-2001 and 2001-2006 census periods were averaged in order to calculate the population projections 4 Looking at the region as a whole, the CVRD’s growth of 6.8% over a 20 year period. The calculation of historical growth rates since between 2001 and 2006 is outpacing growth in the for these communities is complicated by the fact that the census province, as well as averages across Canada. This figure falls boundaries for both Shawnigan Lake and Cobble Hill were changed in 2001 to correspond to actual Electoral Area between the Nanaimo Regional District’s growth rate of 9.1% 5 and the Capital Regional District’s 6.0% growth. boundaries . Current population projections could be enhanced by adjusting them to include figures from forthcoming releases While growth in Shawnigan Lake (6.8%) matched overall growth from the 2006 census, including detailed information on fertility, in the CVRD, Cobble Hill, having grown at just 0.1%, recorded a mortality and migration – the main contributing factors in much lower growth rate in the 2001-2006 intercensal period. determining population growth rates.

According to 2006 census figures, the Arbutus Ridge Subdivision Growth Factors: As life expectancies increase and the Baby recorded a much higher than local average growth rate (9.5%) in Boom generation ages, by 2031 the CVRD will not only have a this period meaning that the remaining three quarters of the larger seniors population, but seniors will represent a much Cobble Hill population actually experienced a negative growth greater proportion of the total population. Given that Shawnigan rate of -2.2% in the 2001-2006 period. This figure is somewhat Lake and Cobble Hill (along with many of Vancouver Island’s east surprising and may be incorrect given that lots in this coast communities) are attractive destinations for retirement development were sold out over two years ago, with very little aged people, an additional surge in population could be expected resale. Regardless, future growth in the subdivision will be as the population across the country continues to age and limited as the majority of the lots (616 out of a total of 650) have retirement migration continues at current levels. already been built on3.

Using recent historical growth rates, future population figures can be projected. Based on these, it can be estimated that by 2026 Cobble Hill could add approximately 580 new residents, 4 Cobble Hill recorded a growth rate of 6.0% between 1996 and 2001, reaching a population of around 5,100 residents. averaged with a rate of 0.1% for the 2001 to 2006 period equaling an average of 3.05% which was used to predict population projections. Expanding at its higher growth rate, Shawnigan Lake could reach Similarly, Shawnigan Lake grew at a rate of 7.4% between 1996 and a population of approximately 9,950 residents by 2026, an 2001 then at 6.8% between 2001 and 2006 working out to an average addition of 2,387 new residents. of 7.1 which was applied in 5 year intervals over up to 2026. 5 The boundaries for the Cobble Hill electoral district were changed between 2001 and 2006 census periods to align with Electoral Area boundaries. The population figure recorded in 2001 of 4,545 was adjusted to 4,525 to reflect this boundary change, therefore explaining 3 Personal conversation with Colin Campbell of the Arbutus Ridge the discrepancy in the upward growth trend in the 2001 figure used in Subdivision. September 5th, 2007. this graph.

Cobble Hill – Shawnigan Lake Community Profile: Shared past, Common future

Figure: Shawnigan Lake & Cobble Hill 20 Year Population Projections 12000

10000 9949 9290 8000 8674 8099 7562 7081 6000 6,591 Population 4957 5108 4000 4668 4811 4287 4525 4530

2000

0 1996 2001 2006 2011 2016 2021 2026

Cobble Hill Shawnigan Lake

At the same time, the proportion of regional population for all In addition to aging trends, economic factors can be expected to age groups under the age of 55 will decline or remain constant. play a role in determining changes to demographic profiles in Consequently, the age distribution within the CVRD’s population Shawnigan Lake and Cobble Hill. Both communities show the as a whole is expected to change. In 2006, 20.8% of residents highest employment rates in health and education services, fell into the 0-17 age group and only 17.1% in the 65+ cohort. manufacturing and construction, and business services industries. However, by 2016, there is expected to be a smaller proportion Trends affecting these sectors as a whole are likely to result in of children (17.7%) and a larger proportion of seniors (20.1%). population changes, as working age residents migrate in search of jobs or, in the case of Cobble Hill and Shawnigan Lake, choose This shift in the age characteristics may have widespread to locate in affordable locations that are close to the major implications across the region, in terms of housing demand, employment centres of Victoria and Nanaimo. transportation needs, business development, spending patterns, tax base composition and more. Given its already older age Upcoming 2006 census releases, especially those pertaining to cohort, planning to accommodate an increased number of labour, place of work and mobility to work (scheduled for seniors in Cobble Hill will likely be more pressing in the short- released on March 4th, 2008) will help to further illustrate these and medium-terms in Cobble Hill than in Shawnigan Lake. trends and how they can be expected to influence future demographic changes.

Cobble Hill – Shawnigan Lake Community Profile: Shared past, Common future

Population Age Distribution – 1976, 2006, 2036 Local Health Area 65: Cowichan The population pyramids pertain to the Cowichan Local Health Area (LHA #65) which encompasses both North and South Cowichan, including Crofton, Duncan and Mill Bay, in addition to the planning area6. Despite the geographical overlap, the population pyramids still provide an insight into potential age and sex distribution for populations in the area.

Based on these graphs and consistent with provincial and national trends, it is predicted that median age in the LHA will continue to increase over the next 30 years to almost 50. This is an especially drastic increase considering the median age in 1976 was closer to 27 years. This is predicted to occur as a result of increasing population totals (both male and female) in the higher age ranges and birth rates remaining fairly consistent or decreasing slightly.

There is a noticeable anomaly within these graphs regarding the total number of males and females between the ages of approximately 15 and 35 in the 2006 age pyramid, and by extensions, the 2036 projection. This may be due to what has been documented as lower than average reporting frequencies by populations in this age range. It is therefore difficult to understand whether there are abnormal distributions in this range, or if these numbers are simply offset by this reporting issue. It is further speculated that this age cohort is very transient and, particularly for men, will move to areas of employment activity. Currently, due to the booming oil and gas industry, Alberta has emerged as an employment centre that is over-represented by men in this age cohort. Where such conditions will remain by 2036, or where, if anywhere, employment centres will be is a matter of speculation that was not considered.

6 Source: BC STATS, P.E.O.P.L.E. Projection 32. Note: Line indicates median age

Cobble Hill – Shawnigan Lake Community Profile: Shared past, Common future

6. Environment, Resources and Servicing Current Situation

6.1 Environmentally Sensitive Areas The CDFmm biogeoclimatic zone is under heavy development pressure. Characterized by warm, dry summers and mild winters Environmentally sensitive areas (ESAs) are areas that provide with long growing seasons, the planning area has the mildest specialized habitat for wildlife, fish and plants, or are areas of climate in Canada. significance for their rarity. Quite often ESAs are sensitive because they are rapidly fragmenting, disappearing or are under Invasive plant species are an ever increasing threat to rare threat of disappearance. ESAs include: ecosystems such as the CDFmm. Ivy, Scotch Broom, Himalayan Blackberry, Japanese knotweed and many other species are out- - Wetlands, watercourses, lakes and ponds competing native plants, including those found in rare Garry oak - Old growth forests and mature forests meadows. Garry oak ecosystems are found nowhere else in - Marine nearshore and farshore areas Canada and support many rare and endangered plants - Wildlife trees - Cliffs, bluffs, dunes and terrestrial herbaceous Sensitive Ecosystem Inventory (SEI) Seven sensitive ecosystems ecosystems have been mapped and defined by Environment Canada’s

The planning area is located within the Coastal Douglas Fir (CDFmm) biogeoclimatic zone. Although once dominant, this zone is now highly fragmented and considered rare. Almost all forested ecosystems within the CDFmm are provincially red- or blue-listed, meaning they are endangered or threatened, and qualify for ESA classification. Several rare wildlife and plant species also occur within these ecosystems.

Other ESA features, such as cliffs and wildlife trees are important nesting habitat for a number of rare bird species including the provincially red-listed Peregrine Falcon and Northern Goshawk. ESAs and the CDFmm are very sensitive to the effects of human development. As such, they should be treated with special care and managed for persistence of species.

A Garry oak meadow in Cobble Hill

Cobble Hill – Shawnigan Lake Community Profile: Shared past, Common future

Canadian Wildlife Service (EC CWS 1998) in the planning area. Ecosystem Name Characteristics The table illustrates the ecosystems and their characteristics. Riparian Riparian habitats are located along watercourses and on the margins of Ecosystem Name Characteristics wetlands, lakes and ponds. They are Terrestrial Terrestrial herbaceous ecosystems are nutrient rich environments with rapid Herbaceous comprised of open wildflower tree growth and diverse understorey meadows and grassy hilltops, often vegetation. They support a high interspersed with rocky outcrops. They number of species as they contain support a variety of rare and unique water, food and shelter components plants species and do not re-establish required by wildlife. if disturbed. Older Second These forests are over 80 years old Older Forest The minimum age for older forests is Growth and may contain both coniferous and 100 years. These forests are rich in deciduous tree species. They provide biodiversity values as the trees are connectivity between other natural large and tall, have several structural areas and are also the basis for future layers and have a dense mat of old growth forests. understorey vegetation and mosses. Wetlands Wetlands are among the most These forests are under a great deal of productive and important ecosystems harvesting pressure. in the world. They are threatened by Seasonally These are located in low-lying areas pollution, development, land Flooded quite often in association with lakes or reclamation and overuse. Wetlands Agricultural coastal bays. They have many support a range of species and provide Fields characteristics of temporary wetlands critical habitat for a number of rare and provide habitat for a number of and endangered plants and wildlife. wintering waterfowl including Trumpeter Swans. Many of these fields Innovations are located adjacent to other agricultural fields or natural wetlands, Environmental Canada’s Canadian Wildlife Service (CWS) carried providing forage and refuge habitat. out a Sensitive Ecosystem Inventory (SEI) mapping project from Sparsely These ecosystems include inland cliffs 1994 to 1997. This project, which covered East Vancouver Island Vegetated and bluffs, sand dunes, and gravel and and the Gulf Islands, identified and mapped sensitive terrestrial sand spits. They are generally highly ecosystems in these areas, including coastal bluffs, riparian areas, unstable due to landform, but support wetlands, old forest, dunes, spits and cliffs, and herbaceous a very narrow range of highly ecosystems. Madrone Environmental Services Ltd. is currently specialized plants and animals. carrying out terrestrial ecosystem mapping (TEM) for the

ecosystems within the CDFmm biogeoclimatic zone. The aim of

Cobble Hill – Shawnigan Lake Community Profile: Shared past, Common future

the TEM is to determine the extent of the CDFmm, identify rare 5) In forestry designated land (currently F-1 and F-2 zones), and endangered ecosystems within the CDFmm to rate them for QEP assessment of non-forestry related development as conservation potential, and to field check SEI polygons. designated by the Zoning Bylaw is recommended.

The Garry Oak Ecosystem Recovery Team was formed to create implementation plans and groups to help protect and preserve endangered Garry oak ecosystems, promote species recovery in those ecosystems, and to foster public and private stewardship activities. The Forest Practices Board is recommending that the provincial government implement a stewardship strategy for the CDFmm within woodlots (FPB 2007).

Summary of Recommendations

To help protect and preserve ESAs in the planning area, the following recommendations should be considered for the South Cowichan OCP:

1) The CVRD should incorporate Sensitive Ecosystem Inventory (SEI) mapping into the South Cowichan OCP.

2) Where SEI polygons are identified on Figure 1 in a proposed development location, a Qualified Environmental Professional (QEP) must be retained to assess the location, quality and accuracy of the polygon.

3) Development must be located away from the sensitive ecosystem wherever possible, or mitigation measures must be recommended to ensure persistence of the ecosystem.

4) All forested areas identified in Figure 1 not used for forestry related activities should be assessed by a QEP to determine if listed ecosystems or rare elements are present. Steps must be taken to ensure connectivity of ecosystems and retention of critical habitat for rare species.

Cobble Hill – Shawnigan Lake Community Profile: Shared past, Common future

Figure 1 – Sensitive Ecosystems Map (see Map Appendix)

Cobble Hill – Shawnigan Lake Community Profile: Shared past, Common future

6.2 Riparian Areas

Many watercourses, including tributaries and ditches, occur within the study area (Figure 2). Major watercourses and water bodies include:

- Shawnigan Lake - Shawnigan Creek - Koksilah River - West Koksilah River - Hollings Creek - Johns Creek - Wild Deer Creek - Doucicault Creek - Holt Creek - Dougan Lake

Streams, wetlands and lakes are habitat for many species of fish A spawning salmon returns to a local river. including salmonids. Even if a watercourse is determined to be non-fish bearing, it may still contribute nutrients and cool water directly to fish habitat depending on connectivity downstream. Current Situation Species present in the study area include, but are not limited to: Coastal cutthroat trout, chum, Chinook, coho, Dolly Varden, Under the current OCPs for Electoral Areas B and C, no steelhead, and rainbow trout. development can be located within 15-metres of the high water mark of a watercourse. No buildings for livestock may be sited Benefits of riparian areas include stormwater management and within 30-metres of a watercourse, lake or well (CVRD 2007). pollution filtration. Vegetation along the edges of water bodies With the inception of the Ministry of Environment’s Riparian slows down run-off and allows for greater infiltration of water. Areas Regulation (RAR) in March 2006, default setbacks from Riparian areas are also highly desirable to wildlife. They provide watercourse and water bodies were determined for many shelter, water and food sources. Often, riparian areas have large regional districts in BC. Under the RAR, a default setback of 30 m trees and a diverse and dense understorey providing habitat applies to all permanent watercourses and 15 m to lakes, diversity, as well as shade and nutrients for fish. wetlands and ponds (MOE 2006). This increases the setback under both Electoral Areas’ original OCPs.

The RAR allows a Qualified Environmental Professional (QEP) to assess the watercourse or waterbody and, using the assessment

Cobble Hill – Shawnigan Lake Community Profile: Shared past, Common future

FIGURE 2 – Water resources Map (see Map Appendix)

Cobble Hill – Shawnigan Lake Community Profile: Shared past, Common future

methods provided by the regulators, reduce the setback. Further 1) Riparian areas, including streams, lakes and wetlands, reductions in the setback may be permitted in cases of undue must be buffered from development as per the RAR. A hardship, e.g. when a riparian buffer sterilizes a lot or does not default 30 metre setback or Streamside Protection and allow for a developable area. Enhancement Area (SPEA) will be employed. A QEP may be retained to complete a RAR assessment and reduce Agricultural uses are exempt from riparian regulations. Often, the size of the SPEA when the proposed development landowners clear and farm right up to the banks of creeks and must intrude within the setback. wetlands. Liquid fertilizer and pesticides are also applied to crops 2) As stream mapping in the study area is limited, the and may run-off into water bodies. Many riparian areas are also presence of streams on a property must be assessed and becoming overgrown with non-native and invasive plant species. confirmed using best available knowledge, contours and mapping. Where there is any question, a QEP must be Innovations retained to assess the presence or absence of watercourses, and to follow the methodologies set out As well as being valuable to wildlife, riparian areas may also by the RAR. increase property values. In the recent report, “Corridors of Green and Gold”, the financial benefits of living beside 3) Land use and development, including solid and liquid greenways, including riparian corridors is described. The study waste management, should be conducted in such a way showed that the values of homes located adjacent to riparian as to maintain and protect water quality and, where corridors were greater than the value of an equivalent home possible, improve it. located some distance away.

The Ministry of Environment has recently prepared a document outlining Best Management Practices for Urban and Rural

Developments. Recommendations include retaining wide green areas, planning developments to protect aquatic features and fish habitat, and managing stormwater runoff from developments.

The CVRD currently have Riparian Area DPAs where 30 metre buffers are required. The actual setback will vary depending upon the Streamside Protection and Enhancement Area (SPEA).

Summary of Recommendations

To help protect and preserve riparian areas in the planning area, the following recommendations should be considered for the South Cowichan OCP:

A productive and protected stream in the planning area

Cobble Hill – Shawnigan Lake Community Profile: Shared past, Common future

6.3 Marine Areas Current Situation

Marine areas include the beach and rocky areas and rock Shorelines and ocean front properties are highly sought after as platforms. Beach substrate of gravel and boulders overlies these they provide expansive views. These areas can also be highly platforms creating habitat for fish and wildlife. Marine areas also sensitive to development pressures. Retaining walls, landscaping include the areas of where creeks and streams meet the ocean. and seawalls can affect erosion and disrupt the natural flow of sediments. Removal of natural vegetation for lawns and gardens Electoral Area C comprises all of the marine shore in the study can also increase erosion, and remove valuable habitat for area (Figure 3). Currently, there are clusters of dense wildlife. development along the shoreline however a large amount of the shoreline is characterized by low density development. BC Lands administers and allocates leases of aquatic Crown land (including foreshore) under the Land Act, 1996. Therefore any development that affects these areas requires appropriate Shoreline in the planning area is located within the Strait of permits and permissions. Georgia. This area has varied and diverse marine communities due to changing currents and temperatures. These areas are Fisheries and Oceans Canada (DFO) may also require notification important for returning spawning salmon and herring, and of some projects. Coordination with appropriate governing bodies represent sensitive habitats for a number of rare species. Marine is recommended before any major development occurs. mammals and shorebirds rely on marine shore areas for haul outs, rubbing beaches, foraging, and refuge during migration. Water use zones in Electoral Areas B and C currently address marine issues by defining four zones from private and community use, to public and commercial use. Degrees of public use and recreation are defined by these zones.

Innovations

The Stewardship Centre of BC has created the Green Shores sustainability project. This project “promotes healthy coast and marine ecosystems through planning and design that benefits the environmental, social and economic aspects of coastal systems.” It is a positive approach for property owners, developers and design professionals to address environmental and sustainability issues associated with increased waterfront

The marine shore line in Cobble Hill

Cobble Hill – Shawnigan Lake Community Profile: Shared past, Common future

FIGURE 3 – Marine Coastline Map (see Map Appendix)

Cobble Hill – Shawnigan Lake Community Profile: Shared past, Common future

development, while offering information and tools to assess 6.4 Water Resources and Management shoreline property and habitat protection” (MOE 2007). Water resources in the form of surface and groundwater serve Summary of Recommendations multiple purposes. Public and private licensed water diversions from lakes, streams and rivers supply planning area residents To further protect and manage marine shore areas, the following with drinking and domestic water as well as water for agricultural, policy recommendations should be considered for inclusion in the commercial and industrial use. Additionally, lakes, streams and South Cowichan OCP: rivers provide aquatic habitat and riparian function for fish and other aquatic life. Surface water sources are supplemented with 1) Minimize the impact of development to the natural well water drawn from subsurface aquifers which occur environment, including the foreshore and riparian throughout the region. Subsurface aquifers also serve as sources vegetation. for surface water flow, particularly during the dry summer 2) Consider establishing marine/shoreline Development months. Permit Area. The South Cowichan OCP should consider water management 3) Marine development, including wharves, docks and issues in order to ensure that water resources are conserved and associated buildings should be strictly controlled and, managed in an equitable manner. Currently, there is no where permitted, designed to reduce impact to the coordinated management of surface and groundwater at the ocean floor, foreshore and upland habitat areas. watershed or aquifer level. Developing coordinated management Stormwater management should be planned to avoid will result in more efficient water use planning and lessen direct impact to marine areas.

4) Encourage stewardship activities including shore cleanup, softening shorelines by incorporating native vegetation, and reducing the use of pesticides, household cleaners and other chemical-based products.

5) Septic tanks should be properly maintained and emptied regularly.

6) Recreation should suit the characteristics of the shoreline. Passive recreation is encouraged.

7) Ensure proper coordination and cooperation between appropriate legislative bodies to assist in comprehensive management of marine areas.

Liquid fertilizer being applied to fields in Cobble Hill: a water management concern

Cobble Hill – Shawnigan Lake Community Profile: Shared past, Common future

potential future conflicts by planning and managing for increased Aquifer Names and Locations consumption needs (population growth) and potentially Name Location Type Productivity Vulnerability Demand Sand decreased supply (climate change). 197 Cobble and IIC Moderate Moderate Mod. Hill NE gravel Urbanization and property development can affect surface and (11) groundwater. Changes in land cover, or soil permeability when 200 paving occurs, result in changes to infiltration to aquifers and to IIIB West Bedrock Low Moderate Low stream response to storms. Industrial activity, agricultural runoff, (9) and residue from home and garden chemical use can affect 203 Shawnigan water quality in streams and aquifers. Properly managed IIA Lake Bedrock Moderate High Mod. development can minimize such adverse impacts. (12)

Cobble Current Situation 202 Hill IIB Bedrock Moderate Moderate Mod. South - Surface Water: Surface water resources are used primarily in (10) Central Electoral Area B. Figures 2 and 4 shows the location of known 204 Points of Diversion within the South Cowichan OCP planning area. IIB East Bedrock Moderate Moderate Mod. (11) In Electoral Area B, there is one public water system (Shawnigan 205 East- Sand Lake North) administered by CVRD, that serves 586 homes, and IIC central and Moderate Low Mod. several hundred other water licenses administered by private gravel individuals or waterworks improvement districts. Water licensing 207 is a provincial issue, managed by the Ministry of Environment IIB Southeast Bedrock Moderate Moderate Mod. Water Stewardship Division and Land and Water BC. Applications (12) for new licenses are approved on a first come, first served basis subject to water use restriction and fisheries concerns. It is likely that additional aquifers exist in the undeveloped western portion of Electoral Area B, but the lack of well drilling Groundwater: Groundwater is used predominantly in Area C. activity in this area to date means that detailed knowledge of There are seven mapped aquifers located within the boundaries subsurface conditions does not exist. of Electoral Areas B and C. Figure 4 displays their mapped extent and the locations of known water wells. Until recently, well drilling was unregulated and proceeded on an ad hoc basis, and well drillers were not required to register the locations of new wells or maintain well logs. Thus, not all existing wells are known or mapped. Water wells have been regulated since November 1, 2004 under the provincial Water Act and Drinking Water Protection Act.

Cobble Hill – Shawnigan Lake Community Profile: Shared past, Common future

FIGURE 4 – Aquifers (see Map Appendix)

Cobble Hill – Shawnigan Lake Community Profile: Shared past, Common future

For both surface and groundwater, the provincial Drinking Water provide or maintain adequate supplies of safe drinking Protection Act and Water Act are the primary regulations in place. water for residents while protecting stream flows and These provincial regulations are administered by the Ministry of lake and wetland levels required for wildlife and fish. Health and Ministry of Environment, while new water licenses are 2) Land use and development, including solid and liquid issued by Land and Water BC. waste management, should be conducted in such a way

as to maintain and protect water quality and, where Innovations possible, improve it.

The provincial government encourages local governments to 3) Water users, local and provincial governments should work together to coordinate water management. develop source water management and protection plans that deal with land use, water use and water conservation. Although 4) As permitted by the Local Government Act, maximum such plans may be more detailed and local in scope than an OCP, impervious area limitations (as a percentage of total and OCP allows the framework to be implemented for the property area) should be established residential zones. creation of such planning. 5) The development of Well Protection Plan such as those The CVRD has recently completed the Cowichan Basin Water carried out for the Braithwaite, Cobble Hill and Millar Management Plan, which can serve as a template or example of systems should be encouraged in other areas. the proactive water management planning that could be implemented for other watersheds and source water areas. A Cobble Hill Well Protection Plan was prepared in March 2006 for the Braithwaite Estates Improvement District, Millar Water Supply Society and the Cobble Hill Improvement District.

Innovative tools are now becoming available to allow local governments to model and manage stream flows at the watershed level. Use of such tools may not need to be mentioned in the OCP but should be explored by the CVRD.

Summary of Recommendations

The South Cowichan OCP should consider the following water management policy recommendations to help ensure that water resources are conserved and managed in an equitable manner:

1) The OCP should recognize current and project future water use and guide development in such a way as to

Cobble Hill – Shawnigan Lake Community Profile: Shared past, Common future

6.5 Agricultural Resources supports active farms. In Shawnigan Lake, in contrast, there is a substantial area of undeveloped ALR land now under cover of Agriculture is a major land use in the planning area, one of the secondary conifer forest. region’s main economic activities and has an important component of the planning area’s rural identity. The agricultural sector on Vancouver Island is undergoing change. Seven dairy farms disappeared from the Cowichan Much of the agriculture land in the planning area is located in the Valley between 2001 and 2006 (although the number of dairy provincial Agricultural Land Reserve (ALR). The ALR was cows remained approximately the same). The number of farms introduced in BC between 1974 and 1976 to protect agricultural raising beef cattle dropped from 137 in 2001 to 98 in 2006, land from development. Province-wide the ALR contains about according to Statistics Canada’s 2006 agriculture census. These 4.7 million hectares and, despite ongoing removals and boundary changes reflect the trend to consolidation in the face of changes, has remained substantially intact. However on continually shrinking margins on agricultural commodities. southern Vancouver Island the shortage of developable land has Despite this consolidation of dairy and beef farms, the vast resulted in a strong demand to release land from the ALR. majority of farms in the Cowichan Valley are small. More than Between 1976 and 1999 a total of 4,553 hectares of land was 80% of farms in the Cowichan Valley (627 out a total of 772) had removed from the ALR in the Cowichan Valley, leaving a total of Gross Farm Sales of less than $25,000 (as of 1996). 17,600 hectares. Innovations Current Situation The agricultural industry in the Cowichan Valley has been Agriculture is an important contributor to the local economy in diversifying, with substantial growth in farms raising berries, the planning area. Agricultural land, in the form of large dairy grapes, nursery plants, organic produce and small-scale specialty farms, vineyards and smaller specialty farms dominate the products, including alpaca, lavender, organic vegetables and fruit. landscape in both Cobble Hill and Shawnigan Lake (Figure 5). In addition to agricultural production, the area’s vineyards (and a ALR land constitutes 1,396 hectares or 62% of the total area of cidery and lavender farm) have emerged as major tourism Cobble Hill, but only 4% (1,284 ha) in Shawnigan Lake. While destinations in the planning area for both visitors and residents. the total area of agricultural land is similar in both Electoral Areas, Indeed, the growth of specialty, small-scale farms and vineyards the proportion is less in Shawnigan Lake due to its larger total has become a hallmark of the Cowichan Valley. These area. operations increasingly market to local suppliers, as well as at the Duncan Farmers Market. Land within the ALR is zoned A-1 (Primary Agriculture) with a minimum parcel size of 12 hectares. This zoning allows farm Summary of Recommendations activities, but is meant to restrict activities that may damage the agricultural potential of the land. In addition there are some With numerous social, economic and environmental benefits, areas zoned A-2 (Secondary Agriculture) with a 2 hectare agriculture is a critical component of community sustainability minimum parcel size. In Cobble Hill the majority of the ALR land and liveability. As such, the South Cowichan OCP should further

Cobble Hill – Shawnigan Lake Community Profile: Shared past, Common future

FIGURE 5 – ALR Land Map (see Map Appendix)

Cobble Hill – Shawnigan Lake Community Profile: Shared past, Common future

raise the profile of agriculture and include a wider range of policies on the issue.

The following policy options should be considered for the new South Cowichan OCP:

1) ALR land removals should not be permitted without clear demonstration that the parcel in question does not have the capability to support agriculture.

2) In recognition of the fact that increased development in the region will inevitably place residential areas closer to farms, buffer zones and set-backs should be considered to minimize conflicts.

3) Farmers and representatives from the agricultural industry should be encouraged to participate in local commissions and other community committees to provide input from the agricultural community.

4) The CVRD should encourage the Ministry of Agriculture and Foods to finalize and implement legislation aimed at protecting riparian areas in the ALR.

5) The CVRD should work with the Cowichan Region Economic Development Commission (CREDC), the Island Farmers Association, Shawnigan Cobble Hill Farmers Institute and the Cowichan Valley Smallholders Society to encourage and facilitate the further development and diversification of the farm sector including support of marketing initiatives such as agri-tourism, farm-gate sales and farmers’ markets.

Small-scale agricultural uses dominate the landscape in Cobble Hill and portions of Shawnigan Lake. Source: Film Cowichan41

Cobble Hill – Shawnigan Lake Community Profile: Shared past, Common future

6.6 Forest Land Resources ecosystems and disturbed areas. Western hemlock is more prevalent in western regions of the South Cowichan OCP The forest industry was the cornerstone of the British Columbia’s planning area (transitional to CWHxm). economy for more than one hundred years. In the Cowichan First Nations used forests in the planning area extensively to Valley, like most areas of the province, the forest industry was produce a wide range of useful products – foods, implements, the number one job producer, a primary source of revenue, and medicines, and ceremonial objects. Later, after the arrival of a major contributor to social infrastructure. In recent years, rapid European settlers to the area, logging emerged as a major changes in the forest industry have had a major impact on many industry. communities on Vancouver Island, including the South Cowichan plan area. Completion of the Esquimalt and Nanaimo (E & N) Railway in 1886 spurred growth in South Cowichan and helped allow the Cobble Hill and Shawnigan Lake occupy a diverse land base in first industrial sawmill to start operation at Shawnigan Lake in the southern end of the Cowichan Valley. Rimmed by low, ice- 1890. Other mills soon came into production. Growth in the scoured mountains in the west, the southern Cowichan Valley market broadened logging in the area. opens eastward into a rolling plain with kettle/moraine relief before meeting the Saanich Inlet. Much of the South Cowichan Over time, the communities of Cobble Hill and Shawnigan Lake area is classified in the moist maritime Douglas-fir biogeoclimatic developed an agricultural industry, but it was logging that forged subzone (CDFmm). Higher elevations and cooler slopes are the economic backbone of the area. classified in the very dry maritime Coastal Western Hemlock biogeoclimatic subzone (CWHxm). The CDFmm is generally limited to the Nanaimo Lowland Ecosection, a coastal plain on the south-eastern margin of Vancouver Island. The "Ecoregion" is the product of a relatively dry, mild climate in the rain shadow of the Vancouver Island Mountain Range. The CDFmm has warm, dry summers and mild, wet winters. Growing seasons are long. The Nanaimo Lowland Ecosection is one of the most ecologically diverse areas in North America, and one of the fastest growing regions in Canada. Some of the most productive forestry lands on Vancouver Island are found in the area. Forest stands of the CDFmm biogeoclimatic subzone are dominated by Douglas-fir, in association with western red cedar, and lesser amounts of grand fir. Drier sites are characterised by the presence of arbutus (and Garry oak). Deciduous trees – red Forest lands dominate South Cowichan. Shawnigan Lake is visible in the alder, big leaf maple – are commonly found in moister lower foreground. Cobble Hill Mountain is located just left of centre.

Cobble Hill – Shawnigan Lake Community Profile: Shared past, Common future

Current Situation As a result of the historic Esquimalt and Nanaimo Railway Land Grant, forested lands at Cobble Hill and Shawnigan Lake consist largely of private forest holdings interspersed with Crown-owned forest land. Crown lands include small Woodlots and “blocks” (forest stands) managed by British Columbia Timber Sales. Private forest holdings have changed ownership many times over the last century. Most private forest lands in South Cowichan are currently managed by Western Forest Products, TimberWest, and Island Timberlands.

Forest resources produced in the planning area consist of a range of timber and non-timber products. The valley contains a small number of secondary wood processing facilities – cedar milling, sawmills, and joineries – most of which occupy well- established locations near Cobble Hill Village. A small sawmill is situated in an industrial park at south Shawnigan. Non-timber forest products (which are not regulated) include salal (sold commercially to florists) and cash crops of edible mushrooms. A young plantation of Douglas-fir on private industrial forest lands south Woodcrafters and woodcarvers in the valley market their wares of Shawnigan Lake. from home-based businesses and at local craft fairs. Current challenges faced by the forest industry today are markedly different from those in the past. While in the early A growing number of competing forest recreation uses – twentieth century logging in South Cowichan was comprised of mountain biking, hiking, horse riding, and motorised “off-road” numerous locally based companies, today a small, highly vehicles – continue to exert pressures on popularly-used areas of competitive, corporate hierarchy dominates the coastal forest the forest land base in the South Cowichan Valley. industry. Spreading urbanization on southeast Vancouver Island increases pressure on the private forest land base. Forest Provincial forestry facilities in South Cowichan consist of the companies are liquidating private forest lands and new Ministry of Forests and Range (MoFR) South Island Forest District subdivisions have recently replaced “working forests” along large field office, and the Coastal Fire Centre’s South Island Fire Base, areas of south and west Shawnigan Lake. Randomly expanding on the east side of the Trans Canada Highway in Cobble Hill. subdivisions create “rural sprawl” and, in many cases, are located Natural Resources Canada (Forestry Canada) maintains long- outside Fire Protection Boundaries. In the next decade, term silvicultural research trials on private forest lands west of thousands of hectares of productive, private forest lands are Shawnigan Lake. slated to be sold for real estate in South Cowichan.

Cobble Hill – Shawnigan Lake Community Profile: Shared past, Common future

The coastal forest industry must become more competitive in a global economy. The growing inventory of second-growth timber on the coast is highly attractive. The quality and growth rate of second-growth wood are world class.

At a time when the Mountain Pine Beetle is undermining opportunities in BC’s interior, the coastal forest industry has an opportunity to build on existing progress, and attract the capital necessary to revitalize the industry. Provincial and local policy makers, in concert with the forest industry, must work together to move the forest industry forward on the coast, and ultimately, in the Cowichan Valley.

Summary of Recommendations

While many of the potential innovations cited in this section are outside of the purview of an OCP, one area where a new South Left: Large tracts of private forest lands in South Cowichan are being Cowichan OCP could assist forestry developments is in the sold for real estate. Right: A young stand of third-growth Douglas-fir in perseveration of existing working forest lands for the future. The the background grows adjacent to mature, second-growth timber on following recommendations are presented for consideration to be Crown Land near Shawnigan Lake. included in the South Cowichan OCP

1) Recognize the long-term economic development Innovations potential represented in working forest lands and limit rural encroachment on it by limiting rural development Restructuring and repositioning of the coastal forest industry has subdivision. the potential to generate acceptable returns in upcoming years in the planning area. While out of the scope of an OCP, potential 2) Support emerging value-added and community-based opportunities to revitalize the industry include: forest use applications, including, but not limited to, community-owned woodlots, eco-forestry enterprises and small, home-based, value-added forest product - Eco-forestry and local, community-based mills manufacturing. - Home-based business and secondary forestry initiatives - Environmental leadership - Increased role for First Nations - Increased role for Small Business

Cobble Hill – Shawnigan Lake Community Profile: Shared past, Common future

6.7 Fire Protection and Wildfire Interface Human encroachment onto forested lands exacerbates the threat of wildfires in the interface zone. The presence of people near The wildland urban interface (interface) zone is commonly wildland areas has resulted in aggressive fire suppression described as the area where homes, farms, commercial activities to protect life and limit property damage. As a result, establishments, key infrastructure, industrial installations, the natural pattern of frequent low-intensity fires has been recreational developments, and other human activities are disrupted. The UN’s Intergovernmental Panel on Climate Change situated among trees and other combustible vegetation (2007) predicts global warming will extend the duration of fire (FireSmart, Protecting Your Community from Wildfire, 2nd seasons, and increase the number of wildfires, especially in areas Edition, 2003). Fires that have the potential to involve both with mild climates (i.e., South Cowichan). At risk are loss of life, structures (and/or other manmade developments) and wildland property, infrastructure, and resources. fuels are known as interface fires. Interface communities are found across Canada. Much of the planning area is located in the Current Situation wildland urban interface zone. Interface wildfires caused unprecedented damage to several The threat of fire in the interface zone stems from two sources, interior communities of British Columbia during the hot dry as fires can move from the forest, bush, or grassy areas into a summer of 2003. The Firestorm 2003 Provincial Review community, or, vice versa, from the community into adjacent recommended the province of BC take a leading role in the wildlands. Wildfire does not differentiate between fuels in forests, development of strategic interface management plans in communities, or backyards. If left unchecked, fire will spread cooperation with local governments. rapidly through flammable grasses, shrubs, forest undergrowth and trees to consume homes, businesses, and other structures.

Interface areas range from sharp geographical edges (i.e., residential subdivisions bordering a forest), to “intermix” areas (i.e., isolated structures in the midst of a forest). The density of the interface zone ranges from 1 to 1,000 structures per square kilometre (BC Ministry of Forests and Range). The extent of the interface zone varies widely according to aspect, topography, local weather patterns, and vegetative cover.

Wildfires have been major and regular occurrences for thousands of years in many regions of British Columbia, including South Cowichan. Wildfires are a part of the natural ecological cycle of forests in the area andlocal climate and topography are inductive to wildfires.

Wildfire suppression in the Cowichan Valley. 45

Cobble Hill – Shawnigan Lake Community Profile: Shared past, Common future

Volunteer firefighters protect the Cowichan Valley. Fire protection requirements vary considerably throughout the Cowichan Valley. The CVRD contains 18 Fire Protection Areas, one of which (Shawnigan Lake) is located in Area B. The Shawnigan Lake Protection Area has two fire halls, a well-trained volunteer fire crew, fire apparatus and equipment.

The various fire halls in the CVRD operate independently, but in mutual support for manpower and protection. Fire departments have a mutual aid agreement with neighbouring jurisdictions. Fire suppression in the interface zone is one of the most dangerous The Shawnigan Lake Fire Department regularly cooperates with operations for fire fighters. neighbouring fire departments (i.e., Mill Bay, Cowichan Bay).

The provincial government launched the Community Wildfire Fire Protection Areas generally have an 8-km service range. Protection Plan (CWPP) program in 2005 in order to establish a Response times vary considerably, depending on availability of cooperative framework under which interface management volunteer crews, time of year, and time of calls. Expanding programs are developed and implemented to protect human and development outside the Shawnigan Lake Fire Protection Area natural resources values. In 2006 the Cowichan Valley Regional places new subdivisions and other development at increased risk District completed a Community Wildfire Protection Plan, of interface wildfire. identifying a range of interface issues in Electoral Areas B and C: A standard set of operating guidelines is in effect for fire - Rapid growth rate (9%) compared to other areas of the departments to work with the Ministry of Forests and Range Cowichan Valley – placing undue pressure on the (MoFR) Protection Branch Wildland Fire Fighting Service. A high interface zone level of cooperation exists between CVRD firefighters and the - Approximately 80% of land area in South Cowichan has MoFR Wildland Fire Fighting Service. a high to extreme interface fire hazard rating - Wildfire poses a “real threat” to the South Cowichan area Each Fire Protection Area within the Cowichan Valley has risk (Ministry of Forests and Range) exposure to forest fire and interface forest fires. Data from the - Ninety nine percent of wildfires in the last decade have Ministry of Forests and Range indicates the highest incidence of been human-caused fires/per year in the last thirty-five years in South Cowichan occurred in the last decade. Over 99% of wildfires in the area are Cobble Hill and Shawnigan Lake are situated in the CVRD’s Zone human-caused. 1 (South) Emergency Planning Zone. Primary emergency reception in Zone 1 is designated at the Kerry Park Recreation Centre at Mill Bay.

Cobble Hill – Shawnigan Lake Community Profile: Shared past, Common future

Since 1998, local governments in British Columbia have had the authority to designate Development Permit Areas for wildfires in OCPs in order to protect life and property in high hazard areas. A growing number of jurisdictions in British Columbia have established Development Permit Areas for wildfire. The designation gives local governments the authority to establish guidelines pertaining to interface fire prevention and protection, including, siting, and vegetation control. While there are no specific Development Permit Areas for wildfire in the CVRD, there are some DPAs that include wildfire mitigation guidelines.

The process of revising an Official Community Plan can involve the community in useful interface exercises. Public education about wildfire protection can encourage property owners to Shawnigan Lake Firehall No. 1. undertake preventative action to reduce the threat of wildfire. Community-based wildfire planning recognises the vital role of Innovations local and provincial fire fighting agencies in fire prevention and protection. Effective communication about wildland urban Mitigation to reduce the threat of fire in wildland urban interface interface fire prevention and control will help motivate people to areas must address: create FireSmart communities.

- Vegetation (fuel) management Summary of Recommendations - Building construction and design - Infrastructure (including local government planning tools) Growth pressures in the South Cowichan OCP planning area are pushing development further into the wildland urban interface Mitigative action to reduce the threat of fire in wildland urban zone. Advanced fire suppression efforts in the last fifty years interface areas is primarily a responsibility of the community. have resulted in high levels of fuel loading in interface areas. Under the Local Government Act and other legislation, local From the standpoint of community fire protection, interface fires governments have the ability to take preventative measures to have the potential to develop into catastrophic wildfires of a address interface and wildfire concerns. The OCP provides an scale and intensity beyond the range of historical variability. appropriate venue to outline mitigative action to reduce the risk of interface wildfires. Examples of preventative measures that The following policy options should be considered for the new can be applied by local government to save lives and properties South Cowichan OCP: from wildfire include tools used at the time of subdivision, planning, building and servicing.

Cobble Hill – Shawnigan Lake Community Profile: Shared past, Common future

1) The CVRD and Electoral Areas B and C should work in Annual aggregate consumption is in the range of 13- to 16- concert with provincial and local fire protection agencies tonnes per capita, representing a substantial requirement in high to develop a wildfire risk reduction strategies and policy population areas such as Southern Vancouver Island. Many as part of the OCP’s public safety section. To reduce the communities and municipalities are currently, or will shortly, threat of interface fires, mitigation strategies must experience aggregate shortages as local reserves are depleted or address: sterilized. a. Vegetation (fuel) management; b. Building construction and design; Current Situation c. Infrastructure (including local government planning tools, i.e., Development Permit Areas In the South Cowichan OCP planning area, the management of for Wildfire); and, aggregate and mineral resources falls primarily within the d. Public education and awareness. jurisdiction of B.C.’s Ministry of Energy, Mines and Petroleum

2) New development should not encroach further into Resources. The Province is responsible for issuing mine permits, wildfire areas, as identified by wildfire hazard mapping. assuring worker and public safety on and immediately adjacent to operations, environmental protection, and mine reclamation. Local governments maintain land use planning prerogatives to 6.8 Aggregate Resources develop and maintain high quality communities consistent with local need and objectives, and in particular the right to determine Aggregate resources in the form of sand and gravel represent a whether and where aggregate will be extracted and processed. finite, non-renewable commodity. These materials are essential for construction and maintenance of infrastructure and industrial To determine aggregate potential in the planning area, existing developments (roads, buildings, airports, railways, dams, etc.) terrain mapping from the Ministry of Energy, Mines and and are an important component of any comprehensive land use Petroleum Resources was compared against other terrain or resource management program. mapping for the region and air photos. Surficial geology units were merged to form a three-class map for aggregate potential. Aggregate extraction and processing typically occurs in the form of pit or quarry mining. A pit contains loose sands and gravels Figure 6 shows the potential for aggregate resources within the that are directly excavated, screened and transported. A quarry study area. Potential has been ranked as High, Moderate and contains bedrock that must be blasted first before it can be Low. The criteria for this classification are outlined in following crushed into smaller particles. Extraction in both forms is noisy, table. dusty and visually offensive to some. Thus, these activities can be affected by adjacent land uses, escalating land values and the allocation of land for other uses. Once infrastructure is constructed atop or even adjacent to aggregate deposits, it is virtually impossible to economically extract the resource.

Cobble Hill – Shawnigan Lake Community Profile: Shared past, Common future

FIGURE 6- Aggregate Resources Map (see Map Appendix)

Cobble Hill – Shawnigan Lake Community Profile: Shared past, Common future

Table. Aggregate Potential Criteria Summary of Recommendations Aggregate Criteria Potential The South Cowichan OCP should consider aggregate potential to High Areas with surficial geology mapped as ensure that the availability of near surface aggregate materials is glaciofluvial, sandy till and/or sandy conserved and managed in an equitable manner. Developing glaciomarine. These zones are a mélange of coordinated management will result in more efficient land use these deposits that were laid down during planning and lessen potential future conflicts by planning and advance and retreat of glaciers and sea level managing for increased consumption needs (population growth) within the last 25,000 years. These areas are and depletion of reserves. generally located near the coast in the Mill Bay and Cobble Hill areas, along Koksilah River, in The following policy options should be considered for the new Kelton Creek valley, and at the north end of South Cowichan OCP: Shawnigan Lake, and are generally below 100m above sea level. Active pits generally occur in 1) Consider protecting lands with aggregate potential from this area. development that would render it unviable or Areas with surficial geology mapped as sandy till inaccessible by designating aggregate potential lands for Moderate and/or fluvial and glaciofluvial. They may also resource extraction. include colluvium and/or glaciomarine deposits. 2) Use detailed aggregate resources investigations to more These area are less obvious sources of accurately define the aggregate potential of a property aggregate materials, however deposits of good before the land is designated for uses other than aggregate likely exist. They are located along resource extraction. lower elevations in the Shawnigan Lake valley, 3) Encourage the Ministry of Energy, Mines and Petroleum Koksilah valley, Clapp Creek valley and Wild Resources to consult with local government and land Creek valley. More detailed site specific studies owners and to provide due consideration on the possible should be completed to locate economic impacts to neighbouring land and the natural deposits. environment prior to initiating new mining operations or Low Areas with surficial geology mapped as re-establishing existing pits. Particular attention should colluvium, bedrock and minor till. These areas be paid to the impacts of resource removal on the are steeper slopes, located at higher elevation quantity and quality of surface and groundwater, and away from the coast. residential development, and traffic volumes. 4) Minimize conflicts between extraction activities and According to the Ministry of Energy Mines and Petroleum adjacent land users and minimize the impact of Resources, in 2004 there were two gravel pits and one quarry extraction activities on the natural environment by operating the study area. They are shown on Figure 6. limiting extraction and processing to land where such operations would have these limited impacts.

Cobble Hill – Shawnigan Lake Community Profile: Shared past, Common future

6.9 Planning and Servicing draws from Shawnigan Lake and currently provides connections to 586 properties. Services and infrastructure form the backbone of communities. Servicing requirements (including costs, location and phasing) In Electoral Area C, groundwater is the principal source for must be considered during the creation of an Official Community domestic and agricultural water supplies due to the absence of a Plan. Under section 875 of the BC Local Government Act, an large water course or lake. Two Water Improvement Districts, Official Community Plan must consider, among other things: three Water Users Societies, one CVRD system and two Public Utilities purvey water in Cobble Hill: the approximate location and phasing of any major road, sewer and water systems, and - Douglas and Moth Waterworks – Private Utility the approximate location and type of present and proposed - Garnett Creek Water Users Society public facilities, including schools, parks and waste treatment - Satellite Park Water System – CVRD and disposal sites. - Canadian Retirement Corporation – Private Utility - Braithwaite Estates Improvement District In an Official Community Plan, the community decides where and - Vanland Water Users Society when to locate housing, shops, and other land uses. Based on - Cobble Hill Improvement District these land use decisions, the community can then determine the - Millar’s Water Users Society future needs for services and infrastructure, and can plan the timing of and means to pay for improvements.

The community must also consider the kinds of services that residents will desire in the future. For example, new residents who move from more urban settings may begin to desire urban- style services, such as libraries, sewer systems, and formal park space. Communities must not only consider costs and processes of implementing services but also the costs to maintain the systems and likely improvements and replacement times over their lifecycles.

Current Situation

Water: The CVRD currently operates two water systems in the planning area, the Shawnigan Lake North system and the Satellite Park Water system. The Shawnigan Lake North system

Cobble Hill – Shawnigan Lake Community Profile: Shared past, Common future

Figure 7: Water service areas Figure 8: Sewer service areas

The supply of water in both Electoral areas presents a significant In 1998, the South Sector Liquid Waste Management Plan was limiting factor for additional development. During the recent developed but not implemented due to a lack of grant money. summer months, Stage 1 water restrictions were declared on the The plan called for the South Cowichan area to be serviced by a Shawnigan Lake Water System which limited outdoor watering to single sewer network and treated at a single plant before being every second day and only during the morning and evening. discharged in the ocean. According to the 1998 plan, the collection and treatment plant should be designed for 6,000 and Liquid and Solid Waste: Within the plan area, there are three ultimately 12,000 people. publicly owned sewer systems: Shawnigan Beach, Maple Hills and Twin Cedars. However, private sewer utilities also serve the Currently, the majority of both Electoral Areas is serviced by Cobble Hill Village area and the Canadian Retirement Corporation septic systems. A separate management plan covers the rural lands. areas, although the plan identifies the need to develop a better public awareness around proper septic operation and maintenance.

For residences that are connected to the sewer system, the CVRD offers a toilet replacement rebate program. The initiative

Cobble Hill – Shawnigan Lake Community Profile: Shared past, Common future

encourages residents to replace their toilets with a low flow 6) Cost Innovations: Several studies and practices by model. urban and more rural municipalities throughout British Columbia and Canada demonstrate the connections Residential garbage collection occurs weekly, while recyclables between cost savings to municipalities and developers are collected every second week. One of the guiding principles from incorporating smart growth principles. of the CVRD’s Solid Waste Management Plan is for the district and residents to work towards ‘Zero Waste.’ This goal moves Several studies provide evidence for greater cost beyond the Provincial Waste Reduction goal set in 1989 for efficiencies in high density development. For example, municipalities to reduce waste by 50%. The CVRD surpassed the Halifax Regional Municipality investigated how this goal by the year 2000. Part of the impetus of the Zero neighborhood form influences costs to servicing Waste initiative was generated when the CVRD’s landfill reached (www.halifax.ca/regionalplanning/Publications/PatternBoo maximum capacity in 1998. Currently, all waste is transported to k.pdf). In the study, four factors are identified as the Cache Creek Landfill near Kamloops. Therefore, in addition influencing the cost of servicing: density; distance; to the environmental benefits accrued from reducing waste, dispersion/continuity; and diversity or mix of use. For all there are direct fiscal benefits for the CVRD to reduce the types of infrastructure services, the estimated costs for amount of waste it ships outside its boundaries. The CVRD has high density areas are significantly less than larger, less two commercial composting facilities which are able to support dense areas. In addition, the distance that waste travels almost any type of organic materials. to a landfill is identified as a significant factor that affects the cost of solid waste servicing. This suggests that the Innovations CVRD currently accrues high costs by exporting its waste to Cache Creek. Several municipalities throughout British Columbia and Canada demonstrate innovative procedures that recognize the links West Coast Environmental Law recently published the between servicing and effective planning. In general, the research report, “Do Development Cost Charges community should locate land uses and development in such a Encourage Smart Growth and High Performance Building way as to minimize the long-term, lifecycle costs of infrastructure. Design.” The study determined whether Development That is, the costs to build, maintain, and replace infrastructure Cost Charges (DCCs) in British Columbia accurately must be considered for any potential land use pattern. For reflected the true costs of development in different example, consider the location of new housing; a location far locations and with various designs. The study suggests from existing development could require major extensions to that infrastructure savings from implementing smart roads, utility lines, and servicing – water and sewer. growth principles and high quality building and infrastructure design could be up to $5,000 per residential The following describes cost innovations from implementing unit in many communities. According to the report, none smart growth, climate change initiatives and several zero waste of the municipalities selected used the quality of building reduction projects. design as a factor in the determination of DCCs. The authors suggest that communities could reduce costs for

Cobble Hill – Shawnigan Lake Community Profile: Shared past, Common future

developers and encourage smart growth development by by 20% by 2012 from 2002 levels. In order to reduce using density per acre measurements as a tool to set greenhouse gases, the plan states two steps: first to DCCs. complete an inventory of sources of greenhouse gases in the home and community and second to identify areas to Zero Waste Initiatives: GVRD has developed an reduce greenhouse gases. The Action Plan also includes extensive Zero Waste initiative that includes a detailed list methods for the municipality to adapt to climate changes. of Strategies and Actions for achieving their goal. The plan was the subject of workshops and online feedback Summary of Recommendations (Zero Waste Challenge, Greater Vancouver Regional District, http://www.gvrd.bc.ca/zerowaste/). The While the current OCPs contain reasonable policy directions, the Regional District of Nanaimo also has a Zero Waste policy. following recommendation is presented for consideration to be Their municipal website provides strategies for residents included in the South Cowichan OCP: to reduce the amount of waste they produce, and increase the number and types of goods recycled 1) Create an Urban Containment Boundary (UCB) for (www.rdn.bc.ca). Electoral Areas B and C based on serving requirements and costs and, should they be developed, tie Development Cost Charges to the UCB. Climate Change Adaptations: Partners for Climate Protection (PCP) is a partnership between the Federation 2) Review, amend and implement the Liquid Waste of Canadian Municipalities and the ICLEI – Local Management Plan for Electoral Areas A, B and C using a Governments for Sustainability. Many municipalities phased approach. throughout British Columbia and Canada are members working towards five milestones. The five milestones are: 3) The CVRD should develop financial incentives for residents and businesses to reduce waste. - Creating a greenhouse gas emissions inventory and forecast; 4) Include measures of density, distance from existing - Setting an emissions reductions target; services, dispersion/continuity, and diversity of use in the - Developing a local action plan; creation of Development Cost Charges (DCCs) for the - Implementing the local action plan or a set of planning area and link the Urban Containment Boundary activities; and (UCB) should one be developed. - Monitoring progress and reporting results. 5) The CVRD should consider joining the Partners for The Halifax Regional Municipality’s Climate Smart Climate Protection (PCP) program, with the intent to link program released a Community Action Guide to Climate climate change actions to other sustainable, smart Change and Emergency Preparedness in 2006. The growth initiatives such as compact development and municipality is making considerable contributions to alternate transportation. reducing greenhouse gas emissions through its Regional Planning process, and has the goal of reducing emissions

Cobble Hill – Shawnigan Lake Community Profile: Shared past, Common future

Natural Hazards (6.10) slopes during development will address the issues of human safety and environmental protection. As development technology Floodplains and steep slopes are the two most significant natural increases, so does the potential for development on steeper hazard areas where development should be strictly controlled slopes. Retaining walls and advances in geotechnical engineering and/or prohibited. have meant that more and more slopes are being opened for development. Steep slopes are identified as those slopes with Floodplains, as their name implies, are subject to flooding and angles greater than 20%. not well suited to development involving permanent structures. Depending on their elevation above a channel base, floodplains Current Situation vary in the frequency of flooding; some floodplains are under water several times per year; others have a flood frequency of Floodplains: Floodplains occur next to rivers, streams, lakes, less than 1 in 200 years. ponds and wetlands. In the Shawnigan/Cobble Hill area, flooding occurs in the late fall and winter in response to heavy rains, sometimes augmented by local snowmelt.

The main areas of flooding in Shawnigan Lake and Cobble Hill are around the shores of Shawnigan Lake (Figure 9) and Dougan Lake in Cobble Hill. The main watercourses in the Shawnigan area are the Koksilah River and Shawnigan Creek.

Shawnigan Lake is the second largest lake in southern Vancouver Island, at over 500 hectares. It drains an area of 6900 hectares. The outlet is Shawnigan Creek, which flows north and east, emptying into the sea at Mill Bay. The water levels in the lake are controlled to a narrow elevational range (115.75 and 116.3 metres above sea level) by a small dam on Shawnigan Creek roughly 450 metres downstream from the outlet.

The Koksilah River is generally incised in the Shawnigan area and accordingly has a very limited floodplain confined in a narrow valley. Similarly, Shawnigan Creek downstream of the lake has a Floodplain very narrow, confined floodplain.

Development on steep slopes can create an array of The Floodplain Mapping Program, jointly managed by the Federal environmental issues from erosion, slope stability concerns, and Provincial Governments, has mapped the 200-year floodplain surface water drainage changes and visual impacts. Protecting limit around Shawnigan Lake. This limit has been transposed

Cobble Hill – Shawnigan Lake Community Profile: Shared past, Common future

onto one of the OCP maps. Areas below this line are “designated More locally, floodplains are protected though SEI mapping, floodplains”, subject to development restrictions. where development permits will apply.

This program also mapped floodplains on the Cowichan and While restrictions on development on floodplains is clearly a Koksilah Rivers, but this mapping does not extend to the concern for the planning area, the three mechanisms outlined Shawnigan/Cobble Hill Electoral Areas. Along the upper reaches above will likely limit the opportunity to develop on floodplains of the Koksilah, as well as along Shawnigan Creek and other and should be considered largely sufficient to protect floodplains. watercourses, there are localized areas of active floodplain, but these need to be mapped at a much more detailed scale than Steep Slopes: Slopes occur throughout the study area. Slopes 1:30000. in the forestry zoned land will be somewhat protected in areas where slope stability is an issue. Other areas away from large watercourses may be subject to flooding due to wintertime rise in water tables. These are Steep slopes are identified as those slopes with angles greater naturally occurring wetlands, including marshes, swamps, bogs than 20%. These are shown in Figure 9. The map is derived from and fens. Such features have largely been captured by the contours and site specific geotechnical assessments may be Sensitive Ecosystem Mapping for the Cowichan Valley. required prior to development. Agricultural fields that are subject to localized flooding due to an increase in the water table were also identified as “seasonally flooded fields” in the SEI inventory, although not all such fields have been included. Floodplain areas in the SEI not classed as riparian areas will be subject to Development Permit restrictions.

Narrow floodplains along the Koksilah, Shawnigan and smaller creeks are provincially protected through the Riparian Areas Regulation. The aim of this regulation is to protect riparian and fish habitat, but any active floodplain is included in the definition of riparian.

Floodplains are to a large extent already protected by Federal, Provincial and CVRD regulations or bylaws. At the Federal level, the Fisheries Act restricts development near lakes or streams that may impact fish or fish habitat. Floodplains within the 200 year flood limit (“designated floodplains”) as mapped along Shawnigan Lake have restrictions on development as well. Provincially, active floodplains are protected through the Riparian Areas Regulation, except for forestry or agricultural development. Steep Slope

Cobble Hill – Shawnigan Lake Community Profile: Shared past, Common future

FIGURE 9- Steep Slopes Map (see Map Appendix)

Cobble Hill – Shawnigan Lake Community Profile: Shared past, Common future

The current OCPs for Electoral Areas B and C currently define 3) Slopes greater than 20% should be assessed by a hazard areas as slope greater than 25%, land within 30 metres professional geotechnical engineer prior to development. of undeveloped areas with gradients of greater than 50%, and slopes within 30 metres of developed areas with gradients of 4) Existing vegetation on slopes should be retained to greater than 20% (www.cvrd.bc.ca). A professional geotechnical prevent erosion. Large groups of trees should be engineer is required to assess and provide assurance that the considered for retention. proposed development will not cause loss of life or environmental 5) Slope hazard areas identified in Figure 9 should also be damage. assessed to ensure that slopes are appropriate and that no further assessment is required.

Innovations 6) Development planning should consider both human safety and environmental protection into planning for Some municipalities in BC are addressing slope stability by slopes. Run-off and stormwater management should be creating special development permit areas. Given that steeper included in all development plans situated on steep and steeper slopes are available for development, a gradation of slopes to divert drainage away from areas that may be permit areas is created. For example, slopes greater than 41% prone to slumping or erosion. may be designated “no development” zones, while slopes over 20% but less than 41% may be designated as “special 7) Rock outcrops, cliffs, significant trees and watercourses assessment areas” where a professional geotechnical engineer should be identified using other mapping sources. Should must be retained to ensure the safety of the proposed they occur on slopes, then these must also be development. The City of Abbotsford has recently implemented considered for protection prior to development. such a program on its McKee Peak study area. 8) Wherever possible, buildings should conform to the topography of the slope, rather than rely on the creation Summary of Recommendations of artificial benches.

The South Cowichan OCP should consider the following natural hazard policy recommendations:

1) The OCP should address any new development on any active floodplain that is not already protected by existing regulation or by law. One issue not addressed is the effect of forestry or agricultural activities on floodplains.

2) The OCP should consider reviewing the state of existing SEI mapping to ensure that it covers active floodplains in the area and to ensure that the floodplains associated with small watercourses or lakes are sufficiently identified and protected.

Cobble Hill – Shawnigan Lake Community Profile: Shared past, Common future

7. Land Use and Development development should deal with issues such as environmentally sensitive areas, drainage, and image and character. According to the Local Government Act, DPAs 7.1 Residential Development can only be used for areas of intensive residential Land and housing are inseparable from community viability. Well- development balanced communities have housing opportunities for people from all age groups, life stages, family types, lifestyle choices, Establishing definitions and supportive policies for financial situations, and special needs. Housing development - affordable housing and housing for people with should enhance and complete the community rather than special needs. Affordable housing generally requires a degrade or detract from it. This specifically refers to the range of strategies that can be promoted through OCP community’s fiscal responsibilities, public services, environmental policy statements and definitions. integrity, social and economic viability, and image and character.

Residential development will need to be coordinated with the Current Situation provision of infrastructure and services. In general, low-density housing does not tend to pay for itself in terms of long term Shawnigan Lake has seen the most growth recently in population servicing demands, so the CVRD should strike a balance between and in new housing. In both local areas, housing supply has growth based on market demand and residential growth that is increased at a faster rate than would be expected by population fiscally and socially sustainable. growth, probably accounting for some non-resident ownership and smaller household sizes. The South Cowichan OCP will help guide residential development in the planning area through the supply of land for housing Housing Mix, Occupancy, and Age: Of approximately 5,000 development in the following ways: housing units in both planning areas, the majority are single family detached residences. There are a small portion of - Defining settlement patterns that ‘make efficient use apartment or condo units, residences attached to stores, of public facilities and services, land and other manufactured homes, duplexes, and secondary suites. The resources’ (Local Government Act, chp.323 pt.25). Most following charts also show that there are relatively few rental research indicates that this can be achieved by increasing units available, especially in Cobble Hill, and that roughly half of the housing density within a specific municipal service area, all houses are more than 20 years old. thereby servicing more households per unit of infrastructure. Housing Demand, Land, and Capacity: The population in - Identifying and describing community preferences Shawnigan Lake is projected to increase by 2,500 people in regarding the location, type, and character of twenty years, while Cobble Hill is expected to grow by housing. Site planning and design can be directed through approximately 600 new residents. Assuming a decreasing the use of development permit areas (DPAs). Development average household size as projected regionally by BC Stats, this permit area design guidelines can specify how a indicates a need for almost 1,100 new residential units in Shawnigan Lake and almost 325 in Cobble Hill. The tables

Cobble Hill – Shawnigan Lake Community Profile: Shared past, Common future

below summarize population and housing demand projections to Housing Unit Mix the year 2026.

Housing supply will depend on availability of land and allowed densities on that land. BC Assessment data identifies at least 140 ‘vacant’ lots totalling 376 hectares that are within the planning areas and are within the existing areas of residential use. Lot size and density will play a significant role in determining the availability of land to meet future demand. Typical subdivision lots in this area range from 600-1000 square meters, with some lots as small as 350 square meters. A typical lot in an older neighbourhood anywhere in BC is about 350 square meters.

A gross projeection of land demand would sugggest that for Cobble Hill, single family lots at this size would require 19-32 hectares of land over the next 20 years. With duplex zoning, or other multi- Housing Ownership unit zoning, this area could be reduced to 10-16 hectares. In Shawnigan Lake, the areas would be more like 60-100 hectares for single family, or 30-50 hectares for duplex zoning. In practice there would be a variety of lot sizes and densities, so these numbers are intended to serve as a reference only.

Infill housing, such as secondary units or multi-family buildings where single family housing currently exists, could also provide capacity for future housing demand. Further research during the planning process should identify the actual availability of buildable lots and housing supply capacity.

Cobble Hill – Shawnigan Lake Community Profile: Shared past, Common future

Dwelling Age Area C Demand Projections 100% Cobble Hill (Area C) 90% Dwelling Additional Dwelling Year Population 80% Units Units (est.) 1996 4,287 70% Number of dwellings constructed 1996-2001 4,545 1,865 60% between 1986 and 2001-2006 4,530 1,999 50% 2006 2006-2011 4,668 2,122 123 40% Number of dwellings 30% constructed before 2011-2016 4,811 2,187 65 20% 1986 2016-2021 4,957 2253 66 10% 2021-2026 5,108 2322 69 0% *Note: household size =2.2 323 Shawnigan Lake Cobble Hill Innovations and Best Practices

Area B Demand Projections Smart communities plan for housing that effectively integrates Shawnigan Lake (Area B) with public services and infrastructure, provides housing choice Dwelling Additional Dwelling and accessibility to the whole community, inspires developers to Year Population Units Units (est.) pursue community-oriented rather than market-oriented projects, and is resilient to long-term change. This section outlines some 1996 6,591 innovations and best practices used by other communities to 1996-2001 7,081 2,535 meet these principles. 2001-2006 7,562 3,075 Integration with public services and existing 2006-2011 8,099 3,375 300 infrastructure: It is easier for local governments to 2011-2016 8,674 3,614 239 provide infrastructure, roads, parks, and other services to a focused area of high-intensity uses rather than an extensive 2016-2021 9,290 3,870 256 area of low-intensity uses. Some of the ways to add density 2021-2026 9,949 4,145 275 with minimal changes to the character or value of an area *Note: household size =2.4 1,070 include:

Cobble Hill – Shawnigan Lake Community Profile: Shared past, Common future

Focusing new growth in compact, high density, nester housing; and ecologically sensitive design.” transit oriented nodes supports several smart growth (Maple Ridge OCP, ch.3pg.3) principles at once. In terms of housing, it creates opportunities for housing options that are accessible or Conservation Subdivisions are an alternative to the preferable to first time homeowners, young people and typical ‘1 unit per hectare’ approach to rural subdivisions. families, seniors, or anyone who would prefer to walk more Conservation subdivisions allow houses to be clustered often than drive. Bowen Island’s Snug Cove Plan identifies together in order to protect open space, farm land, or Snug Cove (adjacent to the BC Ferry terminal) for infill, environmentally sensitive areas on the rest of the site. mixed use and higher density housing forms. Protection is ensured through land dedications. The Regional District of East Kootenay ‘Fernie Area Land Use EXAMPLE: “Policy 4.1.3 Residential Development Policies: Strategy’ identifies a clear preference for rural subdivisions a) Reinforce and strengthen the viability of the Village that cluster houses together on large lots, creating a center by accommodating residential uses within covenant-enforced small footprint in order to conserve rural commercial buildings. b) Encourage the provision of a wide character, agricultural land, and environmentally sensitive variety of housing forms within Snug Cove Village. c) areas. Consider the zoning of sites within the Village Residential designation to accommodate higher density housing in the EXAMPLE: “3.3.1. General (Policies) d) Rural single family form of townhouse or rowhouse within the Village centre…” development that utilizes cluster design principles, (Snug Cove Village Plan, pg.11) provides open space and protects farmland is preferred over traditional large acreage and country residential Encouraging infill development in areas with unmet development; f) In advance of receiving RDEK support infrastructure capacity adds more housing in areas that for a zoning amendment, a restrictive covenant or are already settled. This can include anything from statutory building scheme is encouraged to be registered secondary suites and apartments above the garage to on title ensuring compliance with Schedule J, multifamily buildings and townhouses above the corner Development Placement Envelopes;...”(Fernie Land Use store. In Maple Ridge’s OCP, existing neighbourhoods are Strategy, pg.7) designated for infill development through higher density zoning in the OCP. Creating a positive development environment to support more appropriate residential development: EXAMPLE: “Policy 3-1. Maple Ridge will: b) Given the right conditions, developers can build housing that accommodate growth through infill by promoting a mix is appropriate to the community and/or are often willing to of housing types and tenures to support diverse needs contribute affordable housing units, community amenities, (e.g. income and abilities) lifestyles (e.g. age and values), or infrastructure upgrades. Developing the “right conditions” and preferences. Examples include housing for older often involves streamlining the approvals process to save residents; housing for persons with disabilities; rental developers time and money. Where local governments work and ownership housing; new homeowners and empty to ensure this, they expect that developers will be more

Cobble Hill – Shawnigan Lake Community Profile: Shared past, Common future

willing to deliver public goods in return. Some of the than the centre) of the plot, and lots that are arranged with conditions that can contribute to a development atmosphere secondary access potential in mind, are all examples of that is mutually beneficial: adaptability strategies. See Section 9 for more information.

- Clear, unambiguous, expectations: Strong and Summary of Recommendations clearly worded policy direction that includes guidelines regarding what is preferred by the community. The following policy recommendations are presented for consideration to be included in the South Cowichan OCP: - A high degree of public trust in the local government: Roadblocks to development planning 1) Contain urban residential development within a eventually emerge where council and/or staff do not designated Urban Containment Boundary with urban respond to and communicate with the public. levels of service.

2) Buffer rural residential development from forestry, - Streamlining preferred development proposals: agricultural and industrial uses Having made ‘what is preferred’ clear, a second step is to expedite the process for those applications that 3) Promote development that coordinates residential follow the guidelines. growth with infrastructure, public transit, amenities, and commercial services.

- Flexible Regulatory Structure: It is often useful for 4) Identify opportunities/strategies to provide affordable or developers and regulators to know they can choose one special needs housing through inclusionary zoning of several acceptable options (often communicated as a developments, density bonussing programs, partnerships, checklist or guideline), or simply meet certain or other appropriate means. performance requirements (known as ‘performance zoning’). 5) Allow secondary units in the form of duplexes or secondary suites wherever there is capacity to do so.

Being prepared for change: Lifestyles and the economy 6) Encourage the inclusion of employee housing where change every decade while roads, buildings, and property commercial developments are compatible with residential lines tend to last for generations. Where land use patterns uses and likely to require a number of employees, such and building structures are able to adapt, there are far more as resorts or schools. options for communities to provide for future housing needs. 7) Allow officials to require an environmental and/or social Local governments can encourage building structures, site impact study to provide information regarding the impact planning, and lot arrangements that are functionally agile – of any large development proposal. or easier to adapt for changing demographic or economic needs, or for future infill redevelopment. Open structure buildings, buildings that are sited within a quarter (rather

Cobble Hill – Shawnigan Lake Community Profile: Shared past, Common future

7.2 Affordable Housing and C is very limited. The rental housing market is also very tight. Affordable housing, or more specifically a lack of affordable housing has become an issue in virtually every BC community. There have been many amendments to the OCP in each of these The challenge of providing and maintaining a healthy supply of communities since they were last approved in the 1980’s. The affordable housing, both ownership and rental, has communities amendments, combined with new housing approaches and large and small wrestling to address the needs of their residents. solutions, will set the stage for the next five to ten years of This challenge is not limited to a specific income bracket or age development and redevelopment in Area B and Area C. demographic, it exists across a broad spectrum of community residents. It appears that there is very little opportunity to create affordable housing opportunities in the R-1 (Rural) and R-2 (Suburban) In response to this challenge, local and regional governments, Residential Zones. The minimum lot size in these zones is too non-profit housing organizations, developers and communities large for compact and affordable single family, transit service are looking at new ways to deliver a broader range of housing does not reach these areas and no services are within walking options, within a range of affordable prices. distance. There is already secondary suite zoning and some secondary suites already exist. The South Cowichan OCP process presents a golden opportunity to ensure that new housing solutions are enabled and Shawnigan Lake: Area B of the CVRD is largely rural in nature. encouraged. It lays the foundation for the zoning bylaws that will It has a range of low density Residential Zones that provide further enable and promote these solutions, and it provides an limited opportunity for affordable housing initiatives. The opportunity for the community to review and confirm the overall majority of development occurs in Central Area B, which direction in the plan. surrounds Shawnigan Lake and comprises about 5,700 hectares. There are 3,075 private dwellings and 2,780 (90%) of these are A new OCP will be able to incorporate new tools and approaches permanent residences. This translates to a density of 25 persons to affordable housing, acknowledging the new reality of housing per square kilometre, but if we assume that most of these people affordability in the region. live in the Central Area B, it is more like 132 persons per square kilometre. The minimum lot size is 2000 square metres or ½ Current Situation acre (Statistics Canada).

Both Shawnigan Lake and Cobble Hill are facing emerging The Residential Zones in the Electoral Area B Zoning Bylaw are: affordability challenges that were only on the horizon when the R-1 Zone – Rural Residential last OCPs were approved for both Electoral Areas. In the last four R-1A Zone – Limited Rural Residential years average housing prices in these areas have increased by R-2 Zone – Suburban Residential 67–79%. This kind of price escalation generally precipitates a R-2A Zone – Limited Suburban Residential shift from single family homes to duplex, townhouse and R-3 Zone – Urban Residential apartment units, but the inventory of these options in Areas B R-4 Zone – Rural Community Residential

Cobble Hill – Shawnigan Lake Community Profile: Shared past, Common future

MP-1 Zone – Mobile Home Park family homes. The minimum lot size is 900 square metres or ¼ R-6 Zone – Urban Residential (Mobile Home) acre. The Residential Zones are:

Secondary suites are permitted on a minimum lot size of one R-1 Zone – Rural Residential acre. R-1A Zone – Limited Rural Residential R-2 Zone – Suburban Residential The R-3 Urban Residential Zone lists single family dwellings as a R-2A Zone – Limited Suburban Residential permitted use, but does not list any multi-family uses such as R-3 Zone – Urban Residential townhouse or apartment. However, in the Shawnigan Lake OCP R-4 Zone – Rural Community Residential Bylaw 2010, Section 6e – General Residential Policies, Multiple MP-1 Zone – Mobile Home Park Family Residential, Policy 6.22 states: R-6 Zone – Urban Residential (Mobile Home)

Notwithstanding the above criteria, those developments Secondary suites are permitted on a minimum lot size of one located within Shawnigan Village or within easy walking acre. distance to the Village shall be given more favourable consideration. There are numerous policies from the Cobble Hill Neighbourhood Plan (Schedule C to Cobble Hill Official Community Plan Bylaw No. In such cases, the Board may consider multiple family zoning 1210) that could be considered for Shawnigan Village. Some of within areas designated urban residential or suburban them include: residential, provided the following criteria are met: - Section 1.2.2 (Development Review) - Section 1.2.3 (Residential Development) a) The maximum density does not exceed one dwelling unit - Section 3.3 (Policies) per 330 square metres of total site area. b) Existing views from surrounding properties are respected The purpose of the Development Permit Policies (Section 8.0) is where possible to establish objectives and provide guidelines for the form and c) The water quality and flow regime of Shawnigan Lake character of residential and commercial development within will not be adversely affected. Cobble Hill Village. Section 8.3.1 (Development Permit Area 2) d) The site is to be developed in a manner which is states that the objectives of the designation are: harmonious with adjacent residential development with - Develop new commercial uses compatible with existing respect to scale, building height and overall appearance. commercial development; - Provide for affordable housing by permitting residential Cobble Hill: Area C comprises 2,330 hectares and has uses above commercial development; and population (2006) of 4,530 for a population density of 200 - Maintain the scale, character and form of development persons per square kilometre, which is higher than Area B. There within the development permit area. are 1,999 private dwellings of which 1,945 (97%) house permanent residents. The predominant residential form is single

Cobble Hill – Shawnigan Lake Community Profile: Shared past, Common future

Section 8.4.1 (Development Permit Area 3) states that the month of July showing the average selling price and the number objectives of the designation are: of sales for single family homes in 2007 are shown in the table below: - Provide for new multi-family residential development in

the Plan area; A shortage of townhouse, duplex and apartment units in - Provide for affordable, rental, seniors’ and special needs Shawnigan Lake and Cobble Hill means that the market housing within multi-family residential developments; affordability of the housing stock is dependent on the price of a - Provide for affordable housing by encouraging small single family home. In the last four years, these prices have suites and seniors’ housing within the permit area, and; escalated out of the affordable range for many potential - Maintain the scale, character and form of development homeowners. within the development permit area.

The average annual household income in the CVRD in 2000 (BC Policy 8.4.1 also states that land designated urban Residential in Stats) was $57,803 as compared to $64,821 in B.C. It is likely the plan map comply with the following criteria: that the household income in Cobble Hill and Shawnigan Lake is higher than the CVRD average, but even using the B.C. average i) Areas designated Urban Residential shall include existing and adjusting for inflation (taking it to $74,130); the CMHC single family residential areas which are serviced by a Mortgage Calculator calculates the maximum house price that water system. the average household can afford is $256,000. This means that ii) Residential development in the Urban Residential sometime in 2004 the average house in these neighbourhoods designation will permit a more compact form of became unaffordable to the average household. The table below residential development. Yet, in accommodating this indicates that the prices have risen sharply since then, meaning residential development, emphasis shall be placed on that many households are unable to purchase housing in these preserving important natural environmental features, communities today. providing open space areas and promoting a gradual phasing of development. Shawnigan Lake Cobble Hill iii) Residential development shall be reasonably accessible to existing community facilities such as schools, shopping Sales Av. Price Sales Av. Price and fire protection services. Distant isolated parcels are not considered appropriate for designation into Urban July‐03 6 $222,300 10 $225,090 Residential. July‐04 1 $256,900 8 $303,643 iv) The land must be outside of the A.L.R. July‐05 6 $366,400 11 $330,464 July‐06 8 $376,512 2 $348,500 Real Estate Market – Home Ownership The residential real estate in Shawnigan Lake and Cobble Hill July‐07 10 $370,370 15 $402,000 consists almost entirely of single family homes. Real estate sales (from the Vancouver Island Real Estate Board MLS) for the 4 year price escalation 67% 79%

Cobble Hill – Shawnigan Lake Community Profile: Shared past, Common future

Average Residential Sale Values, Electoral Areas B & C DPAs), density bonussing, housing above shops, secondary Real Estate Market – Rental suites and zoning for manufactured homes. Excerpts According to local rental property managers (Rowan Property from Planning for Housing 2004, An Overview of Local Initiatives Management Ltd. in Duncan), the vacancy rate for rental in British Columbia are shown below. properties in Cobble Hill and Shawnigan Lake is less than 1%. A typical one bedroom suite (secondary suite) in the area rents for - Comprehensive development zoning is a customized $500 - $700 per month. A three bedroom house rents for $1,100 zoning regulation applied to specific sites. The aim is to - $1,400 per month. There are no apartment or townhouse give local governments the flexibility in allocating densities rentals in the area except in Duncan. and specifying use. Through the process of review and negotiation, local governments can offer a developer While these rental rates are affordable, there is very little rental increased densities when specified conditions are met, inventory and units that are advertised (usually privately) go very such as public amenities and affordable housing. Local quickly. The absence of apartment and townhouse rentals governments can negotiate a housing agreement contributes to the rental shortage. (described in the following section) with the developer to secure the housing over the longer term. Innovations - Density bonussing is a tool used by local governments A broad range of tools and best practices in affordable housing to allow developers to build to a higher level of density are emerging from communities in British Columbia, Alberta and (i.e., floor area or space ratio (FAR/FSR) or units per other Canadian jurisdictions, and have been underway in the U.S. hectare) in exchange for providing affordable housing for several decades. These initiatives go well beyond the units or amenities that benefit the community. It is an provision of subsidized social housing that has been the target of effective way to achieve private investment in public federally and provincially funded initiatives in Canada. amenities.

Planning for Housing 2004: An Overview of Local Initiatives in - Housing above shops is a tool used by local British Columbia, produced by the Housing Policy Branch of the governments to encourage new housing units by allowing BC Ministry of Community, Aboriginal and Women’s Services for mixed commercial and residential zones. These zones provides a comprehensive summary, with examples, of tools allow developers and property owners to build on or which enable local governments to develop and adopt policies convert the upper floors of existing commercial space into and practices to encourage the development of affordable housing units. housing. - Housing agreements provide local governments with a Most of the tools examined in Planning for Housing 2004 are legally enforceable means of securing affordable housing applicable to the CVRD. In fact, some tools are used in one form over the long term. They are negotiated between the or another in both Electoral Area’s current OCP’s and Zoning developer and the local government in the approvals Bylaws, including comprehensive development zoning (through process. These agreements contain specific terms relating

Cobble Hill – Shawnigan Lake Community Profile: Shared past, Common future

to issues such as the form of tenure, the groups that have homes. Secondary suites can provide a source of revenue access to the units, rent levels and management for individuals financing the purchase of their home. The specifications. All housing agreements are filed in the Land legal status of secondary suites is an important issue, as Titles Office. As a consequence, the terms of the they make up approximately 20% of B.C.’s rental housing, agreement continue in force even if ownership of the land and it is estimated there are between 125,000 and changes. 150,000 unauthorized suites in British Columbia.

- Housing reserve funds are usually formed with Zoning for additional detached dwellings on a property is contributions from a local government’s direct revenues or similar to zoning for secondary suites. This enables amenity contributions from developers. They provide a residents to rent a unit in a detached dwelling on their source of funding for housing developments that benefit property. In addition to providing affordable rental housing, the community. Surrey uses its money from the housing suites in detached dwellings provide a way for seniors to reserve fund to assist low to moderate income first-time remain in their homes with the security and support of homebuyers. having younger tenants nearby. Examples of detached dwellings are manufactured homes, garden suites, - Inclusionary zoning requires, as a condition of the converted garages and carriage suites. rezoning process, that developers include some special amenity desired by the municipality, which can be - Using Land owned by a Local Government helps affordable, rental or special needs housing. The local overcome the high cost of land in many jurisdictions in BC government may use comprehensive development zoning -- a significant barrier to the development of affordable as the method to implement inclusionary zoning. A 2000 housing. Many local governments are responding by using CMHC report found inclusionary zoning worked best with their own land to help developers and non-profit housing larger developments in denser, high-growth areas. societies.

- Monitoring Housing Stock - Local governments are - Zoning for manufactured homes allows for affordable using residential capacity studies and land inventories to housing achieved through lower construction costs, small monitor the housing stock in their community. This lots and shared land resources. Manufactured homes make information aids local governments in making decisions up an important part of BC’s overall housing stock (5%). about types of tenure, suitable locations, required They are built off-site and come in two principal forms: amenities and other considerations for future single section homes, common in manufactured home developments. communities, and multiple section homes, which have an aesthetic comparable to single family homes. - Secondary suites provide an important means of meeting the demand for affordable rental housing. Zoning - Zoning for smaller lots is a tool used to increase the for secondary suites is used by local governments to affordability of single detached housing units. Small lot enable residents to create additional housing units in their

Cobble Hill – Shawnigan Lake Community Profile: Shared past, Common future

zoning can increase the density of a development over Housing Authority in 1997, and the Capital Region Housing conventional single detached density levels. Corporation in 1982.

In addition to this substantial list of tools and practices, there are - Land Banking is the practice of procuring or setting aside other things that communities in Canada and the U.S. are doing land that could be utilized in the future for affordable to facilitate and encourage solutions to the shortage of housing. When serviced sites are available at little or no affordable housing. cost, affordable housing can usually be constructed at a cost that can be recovered through sale or rental to a - An Affordable Housing Strategy is an initiative that qualified group. can be undertaken by local government in partnership with public sector grant funding or with the private sector. A - Limited Equity Ownership models provide a means of housing strategy would likely recommend some making housing affordable to the first purchaser and combination of the tools and practices that have already maintaining that affordability for successive purchasers. been identified here, but it would do so in the context of a These models typically remove or minimize the land cost closer look at the opportunities in Cobble Hill and component of the housing project. The resale price Shawnigan Lake. At the OCP review stage, it is important restriction approach above is an example of limited equity to ensure that a full range of tools and practices are ownership. Other models are co-operative housing, enabled. community land trusts, community housing trusts and co housing. While it is difficult for local governments to - A Housing Needs Assessment is generally the first step initiate these models, they can ensure that zoning in an Affordable Housing Strategy (above). Once the regulations do not limit or prohibit the formation of these actual need has been confirmed, it sets the context for the community based housing initiatives. strategy. The Bowen Community Housing Association just completed its first Housing Needs Assessment and Summary of Recommendations Affordable Housing Strategy in 2007. The Affordable Housing Committee of the Sunshine Coast Social Planning The following policy recommendations are presented for Council undertook a similar study in 2006. consideration to be included in the South Cowichan OCP:

- Housing Organization One of the keys to moving the 1) A specific Affordable Housing section should be included affordable housing agenda forward in any community is in the new South Cowichan OCP to elevate and establish having one or more non-profit community based the topic as an important planning concern. The section organizations working full time on affordable housing should include a policy confirming the need for housing solutions. The Tofino Housing Corporation and the Bowen suitable for a broad range of household types and Community Housing Society were formed in 2006, the Salt income groups, and a formal definition of affordable housing and non-market housing. Spring Island Land Bank Society in 2004, the Whistler

Cobble Hill – Shawnigan Lake Community Profile: Shared past, Common future

2) Strengthen the provisions for developing affordable housing in existing zoning and policies that may be carried over to new OCP (i.e. Density Bonussing, Housing above Shops, Secondary Suites, Zoning for Manufactured Homes, Rural Community Residential DPA, etc.).

3) Consider relaxing minimum lot size, allowable density and the multi-family development restrictions in existing R-3 (Urban) Residential Zones in both Cobble Hill and Shawnigan Lake to help create a better policy enabling environment for affordable housing development in these zones.

4) Include scale and character restrictions in revised R-3 (Urban) Residential Zones to help ensure that the current character and charm of existing communities is maintained and to help encourage suitable, compact housing solutions, like small single family, duplex and one or two storey townhouse projects.

5) Recognize and support Social Planning Cowichan’s recently completed affordable housing study, specifically its recommendations to: a. Develop a CVRD Growth Strategy that includes an affordable housing component; and b. Establish an action oriented Cowichan Valley Affordable Housing Council that brings together local housing groups, developers and municipal representatives to advocate for affordable housing.

6) Develop policies to explore the following innovative practices: Housing Reserve Funds, Partnerships for Housing Development, Monitoring Housing Stock, Land Banking, Using Land Owned by a Local Government and Zoning for Smaller Lots.

Cobble Hill – Shawnigan Lake Community Profile: Shared past, Common future

7.3 Village Centres The current OCP has designated this area as the Village Core More sustainable, complete rural communities tend to be centred Commercial Development Permit Area, in recognition of its around pedestrian-friendly village or town centres where a wide importance as the focal point of the community. This variety of commercial retail services, institutional uses and Development Permit Area designation is accompanied by residential uses are clustered. These centres function as guidelines for new development with respect to environmental community focal points and play an important economic, social, protection, landscaping, building design, vehicular access, cultural and recreational role in the life of these communities. pedestrian access, signs, lighting and underground wiring.

While many traditional (and often historic) small town/village Currently there are several land use zones within the Village Core centres in BC and beyond have suffered recently due to Commercial Development Permit Area, including the following: sprawling, more automobile-centred development, the importance of maintaining and revitalizing town centres is widely C-1 Village Commercial recognized as a key smart growth strategy. C-2 Local Commercial C-2A Local Commercial In the planning area, the pattern of historic, village centre- C-2B Local Commercial focussed development has deep historic roots with two C-3 Service Commercial recognized village centres in the Electoral Areas of Shawnigan R-3 Urban Residential Lake (B) and Cobble Hill (C). R-6 Urban Residential (Mobile Home) P-1 Parks and Institutional Current Situation The Village Core Commercial Development Permit Area Shawnigan Village: Located near the north end of Shawnigan guidelines are focused on site development issues, but are silent Lake, the village is focused around the intersection of Shawnigan on land use. The guidelines do not address issues such as Lake Road and Shawnigan Lake – Mill Bay Road. The E & N preserving the land base for non-urban uses, or concentrating railway line runs past the village just to the west, beside the lake. growth in the Village core area.

Shawnigan Village serves as a focal point for the surrounding The public realm (streets, sidewalks and public open spaces) of rural residential communities. Several services and amenities are the Village has grown in an ad hoc fashion, with few proper found in close proximity to each other, including a restaurant, sidewalks. The pedestrian zones are of inconsistent treatment stores, other commercial businesses and community facilities. and dimension. Large areas of asphalt surface serve as informal While quite limited in scope, the village commercial services parking, much of which supplants the sidewalk space. In some represent the main commercial land uses within Shawnigan Lake sections concrete highway safety barriers have been installed, Electoral Area. There are plans for a new shopping centre presumably to better delineate between street surface areas and development across from the Shawnigan Lake community centre pedestrian areas. on Renfrew Road, just north of the Village core commercial area.

Cobble Hill – Shawnigan Lake Community Profile: Shared past, Common future

In other sections, informal low asphalt upstands have been constructed, to define a curb radius at the main intersection or to The Mixed Use Area is located along the east side of Cobble Hill separate the roadway from surface parking areas on adjacent Road north of the Village Core Commercial Area. private property. There are no observed regular curbs and gutters. There is very little formal street landscaping or street The Multi-Family Residential Area is located east of the Village furniture in the Village. Crosswalks have been painted on two of Core Commercial Area on the block bounded by Holland and the four directions at the intersection of Shawnigan Lake Road Watson avenues and Fisher and Fairfield roads. This block is the and Shawnigan Lake – Mill Bay Road. location of the former highways works yard.

Cobble Hill Village: Cobble Hill Village is located in the The current land use designations within the Cobble Hill Village southwest corner of Electoral Area C west of the Trans Canada Neighbourhood Plan Area include: Highway. It is focused on the intersection of Cobble Hill Road and Fisher Road and the immediate surrounding area. As with - Mixed Use Shawnigan Village, the E & N railway line runs through the - Commercial village just to the west of Cobble Hill Road. The Village is the - Multi-Family historical centre of the community and was an important - Urban Residential stopover point along the E & N Railway line. The former railway - Parks & Open Space station building was demolished in the 1950s. - Institutional

The Village provides several commercial and community services The public realm (streets, sidewalks and public open spaces) of and amenities, including a post office, local pub and liquor store, Cobble Hill Village has, much like at Shawnigan Lake Village, shops and community facilities. A former provincial highways grown in an ad hoc fashion, with poor sidewalks. The pedestrian works yard has been decommissioned and the site awaits zones are of inconsistent treatment and dimension. Large areas redevelopment. of asphalt surface serve as informal parking, much of which supplants the sidewalk space. There are no observed regular The current OCP (1989) includes a Cobble Hill Village curbs, gutters and sidewalks. There is very little formal street Neighbourhood Plan which designates three Development Permit landscaping or street furniture in the Village. In general, the Areas within the Village. These are: Mixed Use Area (DPA1), roadways are too wide and the pedestrian areas too narrow. Village Core Commercial Area (DPA2) and Multi-Family Residential Area (DPA3). The Cobble Hill Village Neighbourhood Plan includes a Background Report, which does not form a formal part of the The Village Core Commercial Area is focused around the Plan policies. Interestingly, the Background Report includes an intersection of Cobble Hill Road and Fisher Road and includes the urban design scheme for the village core (“Cobble Hill Village lands on both sides of Fisher Road as far east as Holland Avenue. Tomorrow”), which begins to address many of the above noted This constitutes the core of the Village and includes most of the issues. commercial retail services and shops.

Cobble Hill – Shawnigan Lake Community Profile: Shared past, Common future

Summary of Recommendations with a desire to focus urban growth in the existing communities and preserve forest and agricultural lands. To help revitalize and direct new commercial and residential development to Cobble Hill Village and Shawnigan Village, the 3) Encourage and facilitate the development of a more South Cowichan OCP should consider the following policy consistent, safe and high quality public realm in both recommendations: village areas through the use of wide, pedestrian-friendly sidewalks complete with curbs and gutters (assuming a 1) Establish clear development objective policy goals for storm water sewer system is in place), narrower both village centres that better reflect the community’s roadways and improved pedestrian and bicycle emerging aspirations and priorities for managing growth. connections to and through village centres. Some overarching policy goals could include: a) Retaining the village character by drawing a firmer 4) Review, revise and carry over the urban design scheme line between urban and rural areas, so that one can included in Background report to the Cobble Hill Village see clearly the edge of the villages, and less sprawl. Neighbourhood Plan into the new Cobble Hill plan. b) Focusing urban growth in the existing communities to curb rural sprawl thus preserving forest and agricultural lands and rural areas outside of the villages. c) Maintaining vibrant village communities by encouraging new forms of commercial development with residential above, encouraging mixed use, improving pedestrian linkages and creating places for people to gather. d) Encouraging walking and cycling by developing better pedestrian and bicycle routes into and within the village core areas, areas within the villages for people to meet and sit, outdoor public spaces, bike racks and landscaping. e) Implementing new servicing, particularly sewerage, to support growth within the villages.

2) Review and consolidate the large number of zones in both village areas to simplify development and to permit and encourage more mixed use, to concentrate multi- family housing in village core areas, and to be consistent

Cobble Hill – Shawnigan Lake Community Profile: Shared past, Common future

7.4 Institutional Uses Maxwell International B’hai School is a located in a former campus of Shawnigan Lake School and offers summer day Institutional uses are an important part of both Electoral Areas, schooling. Most students board at the school when in session. providing educational, recreational, cultural benefits and opportunities. Providing opportunities to participate in passive, or Lakeside Preparatory Academy is a private high school located on active cultural and leisure activities is an effective way for the east shore of Shawnigan Lake that caters to international communities to promote a positive environment in which students who need ESL support for Grades 7-12. Day students community members interact and relate to each other. also attend.

Current Situation A small private school, Evergreen Independent School, is located in Cobble Hill in an historical Cobble Hill school building. Given their rural nature, both Shawnigan Lake and Cobble Hill have limited institutional lands and properties. One of the In both Electoral Areas existing OCPs, zoning land for planning area’s main public leisure and recreation facilities is the institutional uses is permitted in all plan map designations. Shawnigan Lake Community Centre. Located in the heart of Shawnigan Village, the modern facility was built in 1994 and Cobble Hill’s current OCP includes the following general received a BC Recreation and Parks Association Facility institutional uses objective (Policy 2.2.8, a): Excellence Award for its design, and positive community impact. Ensure that parks and institutional uses continue to Other major institutional uses in the planning area are schools. form an integral part of the community infra-structure There is one public school in Shawnigan Lake and one in Cobble and are located in the most suitable locations. Hill. The public schools serving the two communities are: Shawnigan Lake’s OCP includes a Parks and Institutional Policies - Cobble Hill Elementary (Grade 1 through Grade 5) section (Section 9), but there the section deals mostly with park - Discovery Elementary (Kindergarten through Grade 7) uses. The section does reaffirm that the public school and private - L' Ecole Mill Bay Primary (Grades K-2 ) schools in the plan area are zoned for institutional use. - George Bonner Middle School (Grades 6, 7 and 8) - Frances Kelsey Secondary School (Grade 9 through 12) The Shawnigan Cobble Hill Farmers’ Institute, located in Cobble Hill Village, has served the area for generations. The historic There are also three residential private schools in the planning institute is one of dozens located around the province to help area. Founded in 1916, Shawnigan Lake School is an support local governments when dealing with land use issues independent, co-educational, university-preparatory, boarding directly involving or impacting agriculture. Farmers’ institutes school for students in grades 8-12. The majority of the 427 also play an important role in increasing the awareness of local students at the school are boarders. agriculture and can assist in providing representatives from agriculture for committees and commissions.

Cobble Hill – Shawnigan Lake Community Profile: Shared past, Common future

Innovations 4) Recognize, support and enhance leisure and culture as vital aspects of community life, including lifelong In many communities, formal partnerships are developed with learning, recreation, community events, and arts and private and public institutions to make available their recreation culture. facilities to the wider public when not in use by the institution. 5) Support the Shawnigan Cobble Hill Farmers’ Institute in These partnerships can help make better use of existing facilities, its continued evolution and participate in any generate additional rental revenue for the institutions, and save redevelopment that may occur. local government the money that it would cost to maintain and develop stand-alone facilities. Shawnigan Lake School has 6) To create more security in the planning area and to be in excellent facilities that could potentially be used by community keeping with provincial trends and precedents, new members during non-school times. institutional uses should not be permitted outright in the planning area and any proposed would require an official amendment to the OCP. Summary of Recommendations

Following a review of their existing documents, Electoral Area B and Electoral Area C should consider developing a separate Institutions or Community Well-being section for the new South Cowichan OCP. The following options are presented for consideration to be included in the South Cowichan OCP:

1) A separate Community Resources section should be included in the new South Cowichan OCP to include policy directions on institutional uses, community well- being, leisure and culture.

2) Maintain and enhance participation, life experience, well- being and quality of life for all community members through partnerships with local institutions in the planning area that optimize the use and development of existing institutions.

3) Continue to encourage School District #79 to carry on making school buildings and adjacent school ground properties available for recreation, cultural activities, community activities and educational programs during non-school hours.

Cobble Hill – Shawnigan Lake Community Profile: Shared past, Common future

7.5 Transportation Regional Transportation (E & N Railway Line): The E & N Railway line formerly served as a viable regional transportation Transportation is a major planning issue, particularly in the system, with regular passenger service between Victoria and development of more sustainable communities where active Courtney, and stops in both Shawnigan Lake and Cobble Hill. modes of transportation (cycling and walking) are encouraged This service has atrophied in the years since the Trans Canada along with transit. While rural communities tend to be more Highway was built and it now provides a very limited (and slow) automobile dependent than denser urban communities that can passenger service. better support regular transit, compact rural communities can still support a wide range of transportation choices and help While the line is still in operation, the former railway station encourage more sustainable goods movement and personal facilities have been largely demolished. There are community transportation. aspirations to reinstitute regular passenger train service as a viable alternative to commuting by car to Victoria or Nanaimo. Both current OCPs note that more frequent train service, Current Situation particularly in the early morning and evening, could generate a substantial increase in commuter use. Since the 1950s, when the Island Highway (Trans Canada Highway) was completed, the highway has bypassed Cobble Hill Road Network: All public roads in the regional district fall under Village, taking with it much of the passenger traffic and freight the jurisdiction of the provincial Ministry of Transportation & formerly carried by the E&N railway. Highways, while land use planning authority lies with the Regional District Board. This means that any proposed changes More recent improvements to the Trans Canada Highway have to the road network needs to be approved by the ministry. It shortened driving times to the Island’s principal employment and also means that transportation planning and land use planning retail centres in Victoria and Nanaimo. This has led to both are undertaken by two different levels of government, leading to Cobble Hill and Shawnigan Lake becoming bedroom communities inefficiencies and conflicts when, ideally, they should be to Victoria, Nanaimo and Duncan, with a significant number of integrated. daily commuters driving to these larger urban centres. This in turn has a major impact on transportation patterns in the area. The Ministry of Transportation & Highways is responsible for long term road network capital improvement plans as it is the The Trans Canada Highway functions as a high-volume, high- subdivision approving authority in the region. speed regional highway, funnelling significant volumes of traffic through Cobble Hill Electoral Area C (it bypasses Shawnigan This situation means that any new OCP Transportation policies Lake). This transportation corridor, in effect, divides Cobble Hill related to the road network will need to be framed as in two, with a limited number of crossing points between the recommendations or request to the Ministry of Transportation & western and eastern parts of the community. Highways.

Cobble Hill – Shawnigan Lake Community Profile: Shared past, Common future

The Ministry of Transportation & Highways is no longer the The Cobble Hill (Electoral Area C) major road network includes approving authority for vehicle accesses to residential property (in addition to the controlled-access Trans Canada Highway) except on controlled access routes, like the Trans Canada Cobble Hill Road, Telegraph Road, the southern and northern Highway. As the new approving authority on these matters, the sections of Fisher Road, and Hutchinson Road. CVRD has yet to amend its Subdivision Servicing Bylaw in order to deal with driveway access on busier, secondary highway The current Cobble Hill OCP (1989) identifies proposed new routes. major roads, including a new Fisher Road alignment that would bypass the Cobble Hill Village. While this route would address the The Shawnigan Lake (Electoral Area B) major road network issue of avoiding heavy traffic through the village centre, it does includes (in addition to the controlled-access Trans Canada impact agricultural lands and could spur further suburban sprawl Highway) Shawnigan Lake (East) Road and West Shawnigan into productive agricultural lands. Lake Road, connected across the top of the lake by Renfrew Road which then extends eastwards to Mill Bay via Shawnigan Some of the broader general road transportation issues in either Lake – Mill Bay Road. Shawnigan Lake Road also extends north or both electoral areas include: to Cobble Hill Village. - Avoiding conflicts between heavy trucks and residential The current Shawnigan Lake OCP (1987) identifies several areas; proposed new major roads, mostly to the north and east of - The need for alternative routes for heavy truck traffic to Shawnigan Lake itself. Some of these proposed major roads avoid conflicts in the two village areas; traverse agricultural land, which could raise land use conflicts - Residential driveway access conflicts off major roads and have negative impacts on preserving the agricultural land - Maintaining public access to Shawnigan Lake at public base. street-ends; - Proposed major roads that would go through existing The Shawnigan Lake OCP identifies the following road problems Agricultural Land Reserve lands; that needed to be addressed: - New major roads spurring suburban residential sprawl; - Road design standards that are more appropriate to - The intersection of East Shawnigan Lake Road and emerging urban areas versus rural areas; and, Recreation Road; - The need for separated sidewalks and enhanced - The intersection of Cobble Hill/Shawnigan Lake Road pedestrian safety. with Filgate and Tath Roads; - East Shawnigan Lake Road between Lark Road and A specific road safety issue has been identified with the condition Strathcona Lodge School; of Cliffside Road East, which intersects with Shawnigan Lake - Potential congestion at the intersection of Renfrew and Road. Specifically, residents have requested that consideration McKean Roads; and, be given to widening the bottom of Cliffside Road East, and to - The approach to the bridge across Shawnigan Creek on properly surface Cliffside Road East to prevent continuing the Shawnigan Lake-Cobble Hill Road

Cobble Hill – Shawnigan Lake Community Profile: Shared past, Common future

washout and flooding problems and to provide for a safer The Cobble Hill OCP has a Transportation policy 13.1.10 which intersection with Shawnigan Lake Road. states that: “The Board shall encourage the establishment of walkways and crosswalks with or separate from existing road Public Transit: There is limited bus service throughout the allowance.” Policy 13.1.13 states that: “The Regional District South Cowichan area. This service covers both Shawnigan Lake supports and encourages traffic control measures that would and Cobble Hill. This public bus service is planned and funded by make the community safer for pedestrian and cycling traffic.” the CVRD in partnership with BC Transit and operated by Greyhound Canada, a private coach company. These policies do not appear to have been very successfully implemented to date, in either electoral area. There are currently There are two fixed bus routes within the two electoral areas. virtually no dedicated sidewalks on roads in either electoral Bus route 8/9 links Duncan, Cobble Hill, Shawnigan Lake and Mill district. This is a major shortcoming in the CVRD’s transportation Bay in a large loop. Bus route 10/11 links Cowichan Bay, Cobble infrastructure resulting in a substandard and, in some places, a Hill and Mill Bay. Service is relatively infrequent: there are dangerous pedestrian environment. It is noted that several major approximately five or six buses per day in either direction. roads in the study area must be travelled by school children.

Cycling: There are currently no dedicated bicycle routes or As the Ministry of Transportation is responsible for maintaining bikeways within either electoral area with the exception of the and constructing all roads in the two electoral areas, any capital Cowichan Valley Trail (for cyclists and pedestrians) following the programs will need to be approved and funded by the Ministry. west side of Shawnigan Lake. Summary of Recommendations Cycling is an important, non-polluting alternative to automobile transportation in areas of concentrated residential growth The South Cowichan OCP should consider the following containing a mixture of usages as in these two villages. transportation policy recommendations:

Both the Cobble Hill and Shawnigan Lake OCPs have policies that 1) Review, update and expand policies that encourage the encourage the Ministry of Transportation & Highways to design Ministry of Transportation to design, construct and and construct new roads to accommodate cyclists. Cycling paths maintain roads to accommodate cyclists (i.e., wider and wider shoulders combined with traffic control measures that shoulders, marked lanes, signage, etc.). would make it safer and more accommodating for cycling traffic. 2) Consider planning and implementing a capital Walking: The current Shawnigan Lake OCP has a construction program for widening the shoulders of some Transportation policy 10.7 which states that: “the Board major rural roads to accommodate pedestrian walking recommends to the Ministry of Transportation and Highways that areas. all major roads be designed to accommodate marked walking/cycling paths or sidewalks where appropriate.” 3) Consider planning and implementing a capital construction program for installing separated sidewalks

Cobble Hill – Shawnigan Lake Community Profile: Shared past, Common future

in the two villages, with raised curbs and, where appropriate, a separation barrier between the roadway and the sidewalk.

4) Increase the number of bicycle routes and develop dedicated bikeways to support the region’s sustainability goals and provide a viable alternative to the automobile.

5) Maintain and enhance connections for both drivers and pedestrians across the Trans Canada Highway, while ensuring safety.

6) Restrict direct access onto the Trans Canada Highway from adjacent properties, and consider prohibiting additional new development fronting onto the highway.

7) Amend the areas Subdivision Servicing Bylaw to establish guidelines for residential driveway access onto secondary highways and major arterials and to limit such access on secondary highways.

8) Augment public transit service in conjunction with projected population growth and the concentration of such growth in specified areas, particularly the village centres.

9) Encourage the development of a commuter rail service to support the region’s sustainability goals and to provide a viable alternative to the automobile.

Cobble Hill – Shawnigan Lake Community Profile: Shared past, Common future

7.6 Parks and Trails Lake Provincial Park in Electoral Area B under permit with BC Parks and the 114 hectare Cobble Hill Mountain Recreation Area Publically accessible green space is an important component in under an agreement with the Ministry of Forests spanning both the development of sustainable, complete communities. Taken Electoral Areas B and C. Each Electoral Area has its own Parks together, South Cowichan’s existing parks, greenways and trails and Recreation Commission that works with CVRD Parks staff serve multiple objectives and provide many community benefits, and provides recommendations to the CVRD Board on matters including: related to community parkland acquisition, development and operations. - providing passive and active outdoor recreation opportunities (which in turn supports community health) Current Situation - improving active transportation connections (i.e., pedestrian, bicycle and equestrian) to and through While both Electoral Areas are largely rural residential communities communities, with significant forest and agricultural land, there - conserving, protecting and improving wildlife and fish are only 476.5 hectares of designated park lands shared between habitat values and environmentally sensitive areas both Electoral Areas, or 1.4% of the total land area, with the - preserving and protecting important cultural heritage majority (340.4 hectares) in Electoral Area B, Shawnigan Lake. sites - promoting community stewardship and involvement in In Electoral Area B, Shawnigan Lake, the CVRD manages 37 maintaining community spaces and amenities community parks totalling 274.8 hectares (about 1% of the total - supporting general community livability land area), along with Spectacle Lake Park and the Cowichan Valley Regional Trail under the regional parks program. The The CVRD is responsible for the management and conservation Cowichan Valley Trail is a portion of the overall Trans Canada of two classes of park - regional and community parks – Trail route and follows the former Canadian National Railway throughout the planning area. Also included under the regional (CNR) right-of-way from Sooke Lake Road (at the south end of parks program is management of the 65.5 hectare Spectacle Shawnigan Lake) to Glenora Community Park. The trail is managed under a trail agreement with Ministry of Transportation, which owns the corridor.

There are also two informally designated ‘community forest’ areas (Sooke Lake Road Community Forest and Stebbings Road Community Forest) which were gifted to the CVRD as part of recent rezoning applications approved by the CVRD. Together, the two undeveloped and previously logged areas account for 225 hectares of Shawnigan Lake’s community parklands. A view towards the Shawnigan Wharf Park from Shawnigan Lake Source: Film Cowichan

Cobble Hill – Shawnigan Lake Community Profile: Shared past, Common future

In Electoral Area C, Cobble Hill, the CVRD operates 19 Similar key policies include: community parks totalling 22.13 hectares (1% of the total land a. Encouraging the development of recreational trails to area). The largest park is the 9.6 hectare Quarry Nature Park provide public access to beaches, parks, lakes and other located just west of Cobble Hill Village. In addition, the CVRD areas of interest with the view to the eventual manages outdoor recreation use on provincial forest lands establishment of a recreation trail system encompassing Cobble Hill Mountain under a 2001 agreement b. Promoting and encouraging public involvement in the signed with the Ministry of Forests. The Cobble Hill Mountain selection, acquisition and planning of parks and in Recreation Area overlooks Cobble Hill Village and adjoins Quarry developing a community stewardship program for park Nature Community Park, though a portion of the recreation area maintenance is also located with Electoral Area B. The recreation area is c. Identifying and targeting key parkland acquisitions managed under the CVRD’s regional parks program. d. Ensuring that park and outdoor recreation facilities meet

community needs as these evolve through changing In the existing OCPs of both Electoral Areas, park uses are demographics in the community permitted in all plan map designations. For Electoral Area B, the existing OCP parks policy emphasizes the importance of acquiring and securing additional waterfront park lands on Shawnigan Lake. Innovations The policy also highlights the improvement of public access and connectivity from Shawnigan Village to the Shawnigan Lake A Regional Parks and Trails Master Plan was adopted by the waterfront. Regional Board in March 2007. It identifies 11 sites proposed for regional park acquisition and the completion of the 140 kilometre A conceptual Trail Master Plan is included in the current OCP that Cowichan Valley Trail. Included in the proposed 11 regional park identifies existing informal trails and gravel roads on Crown, sites is an area encompassing Spectacle Lake Park, Oliphant Lake private forest and private development land, along with potential and Mount Jeffery within the southeast area of Electoral Area B, connections between them. To date, only a very small portion of and an expanded Cobble Hill Mountain Recreation Area covering this trail conceptual plan has been realized. over 1,000 acres and inclusive of the former Bamberton Quarry lands to the southwest. The plan advocates pursuing transfer of Like Shawnigan Lake, Cobble Hill’s current OCP also highlights ownership of provincial lands to the Regional District as part of the importance of acquiring strategic new park parcels to realizing the plan’s regional park objectives. establish an integrated community parks network. Policy 12.1.2, Parkland Acquisition Strategy, prioritizes a community recreation The CVRD Parks Department also recently implemented a park in Cobble Hill Village, a community recreation park in the Volunteer Trail Warden Program for the Cowichan Valley Trail Braithwaite Drive area between Telegraph Road and the Trans and the Cobble Hill Mountain Recreation Area. The CVRD Parks Canada Highway, and a shoreline park between Garnett Road program is planning to encourage expansion and increased and Aros Road. community involvement through a variety of park volunteer programs.

Cobble Hill – Shawnigan Lake Community Profile: Shared past, Common future

The development of a Community Parks and Trails Master Plan will be starting in the spring of 2008 for both Cobble Hill and Shawnigan Lake. Its timing complements the South Cowichan OCP process and will help ensure that supportive and integrated community park and trail OCP policies will be developed for both Electoral Areas.

Summary of Recommendations

The following policy options are presented for consideration to be included in a revised and expanded Parks, Trails and Open Space section:

1) The South Cowichan OCP should provide supportive policies and designations in the concurrent development of the Community Parks and Trails Master Plan which will outline updated objectives and priorities for community park land acquisitions in Shawnigan Lake and Cobble Hill. Additions and revisions should be made where necessary.

2) The South Cowichan OCP should support the identification, acquisition and development of multi- purpose trails to improve non-automobile connections in the planning area.

3) The potential need for additional active outdoor recreation areas (i.e., sports fields) should be explored and supportive OCP policies should be developed where necessary and practical.

4) The South Cowichan OCP should support the continued development, expansion and formalization of community involvement in parks development and acquisition and park stewardship activities in both Electoral Areas.

Cobble Hill – Shawnigan Lake Community Profile: Shared past, Common future

7.7 Economy and Economic Development nature of the planning area and close proximity to other Vancouver Island major economic centres has limited local A healthy, strong and diverse local economy is one of the economic activity and development within the planning area itself. cornerstones of sustainable, complete communities. Complete communities not only attract new employment, but help retain As rural communities, natural resource-related industries -- existing jobs and create a solid tax base to provide and support agriculture in Cobble Hill and forestry in Shawnigan Lake -- are local services and amenities. Without a strong local economy, more significant than in other more urbanized areas of local governments can have difficulty funding important services, Vancouver Island and B.C. Currently, 62% of Cobble Hill is in the residents are forced to work farther from their homes, and provincial Agricultural Land Reserve, while 85.75% of Shawnigan overall community liveability can suffer. Lake is zoned Forest.

Despite its importance to community sustainability, many OCPs In terms of employment, the planning area’s local economy is fail to effectively integrate local economic development with land dependent on jobs located outside of the two Electoral Areas in use planning and community development, or do not give it the larger, more urban communities. Employment and economic same consideration as other elements of community activity in the planning area is limited to small-scale, primarily sustainability. The South Cowichan OCP planning process should local-serving businesses and services. The closet employment recognize the importance of economic development in centre is Duncan-North Cowichan, which is the regional district’s community sustainability, elevate its discussion in policy planning central urban core and the planning area’s commercial and sessions, and seek to develop a suite of economic development administrative centre. Duncan-North Cowichan is also home to policies that are coordinated and integrated with other more several of the CVRD’s largest employers (e.g., School District traditional OCP issue areas (e.g., land use, community amenities, #79, Timber West, Hayes, and Island Savings Credit Union). transportation, etc.). Most of the Island’s major employers and jobs are concentrated

While neither Electoral Area is suffering economically, each could better support and help diversify their local economies and tax bases while still respecting and maintaining their rural residential characters.

Current Situation

Cobble Hill and Shawnigan Lake are both predominantly rural residential communities with correspondingly limited commercial and industrial development and relatively un-diversified local economies. Labour force participation rates, unemployment rates Village commercial: In both Cobble Hill Village (pictured) and and income levels are close to B.C. averages. However, the rural Shawnigan Village commercial development tends to be small-scale, local serving.

Cobble Hill – Shawnigan Lake Community Profile: Shared past, Common future

in Nanaimo and Victoria, both of which are easily accessed by car Of note is the high percentage of individuals working from home from Shawnigan Lake and Cobble Hill. (19% in Cobble Hill and 14% in Shawnigan Lake), which is well above the provincial average of 9%. Given the area’s limited commercial and industrial activity, Shawnigan Lake generates the lowest percentage of taxes from Economy and Economic Development – Key Indicators industrial and business uses of all the Electoral Areas in the Shawnigan Lake Cobble Hill CVRD at 2.5%. Cobble Hill is ranked 5th at 9.82%. Both areas are Unemployment rate 4.9% 6.8% Average earnings (full dependent upon residential taxes, with Area C being the most $42,810 $43,899 year; full time) reliant of all CVRD Electoral areas at 89.38%. Area B is the Government transfers 8.8% 14.7% second most reliant at 88.74% of total taxes. (% of income) Employed labour 3,885 1,835 Given the rural residential nature of both communities, neither force 15 years + Electoral Area has extensive economic development policies Worked at home 14% (525) 19% (355) beyond general guidelines around commercial and industrial Top 3 industries by Health & Health & Education sector Education development. Shawnigan Lake’s current OCP includes the Business Services Manufacturing & following general economic policy goal in Part Two – Plan Manufacturing & construction Objectives: construction Business Services To encourage Shawnigan Village to develop as the Education (%, 20 -64 primary commercial, social and cultural centre of the year olds with college 23.5% 19.2% Shawnigan area. certificate or degree) Education (%, 20 -64 year olds with university 19.6% 23.2% Cobble Hill’s current OCP includes the following overarching diploma or degree) economic policy goal in the document’s goal section:

Cobble Hill Economic Goal: (2.1.2): To assure Commercial development: Both Cobble Hill and Shawnigan retention of an agricultural community and to identify Lake have very limited commercial development. In Cobble Hill, sites for commercial, industrial and institutional uses just over 1% (23.5 hectares) of land is zoned commercial, while deemed appropriate in a rural community. just 0.45% (14.4 hectares) of land is zoned commercial in Shawnigan Lake. With few exceptions, the commercial services This table provides an overview of several key economic are local serving, rather than region-serving. General retail, food indicators from the last census for which information is available stores, pubs, restaurants, gas stations and small-scale office uses published (2001). It illustrates some of the similarities between (e.g. real estate offices, bookkeeping services, etc.) are the the two Electoral areas. It also notes some interesting dominant commercial uses. differences, in particular unemployment rates and government transfers as a percent of income, which may indicate a higher In the existing OCPs of both Electoral Areas, there is a single number of retired (including early retirees) living in Cobble Hill. “commercial” designation, but the policies include provisions for

Cobble Hill – Shawnigan Lake Community Profile: Shared past, Common future

several kinds of commercial, including local commercial (i.e., (57.49 hectares) of land is zoned industrial, while 0.16% (51.58 corner stores), service commercial (i.e., auto-related), tourist hectares) of land is zoned industrial in Shawnigan Lake. Neither commercial (i.e., resorts) and neighbourhood pub commercial. community has any heavy industrial businesses, which are Similar key policies include: regionally concentrated in the District of North Cowichan and to a lesser degree in the Town of Ladysmith and Electoral Area D. a. Directing and encouraging new commercial development

into existing commercial areas (i.e., Cobble Hill Village In the existing OCPs of both Electoral Areas, there is a single and Shawnigan Village) “industrial” designation, which provides for light industrial use. b. Improving, expanding and better integrating commercial Both OCPs discourage heavy industrial uses due to development in Cobble Hill Village and Shawnigan Village incompatibility with surrounding rural residential areas. c. Closely managing and minimizing future auto-related

development along major arterials, including the Trans- In Cobble Hill, a small industrial area is located close to Cobble Canada corridor Hill Village. The close proximity of the area in general, and some d. Encouraging high quality commercial design that noxious odour issues with a composting business in particular, maintains and enhances the rural character of the area, have been cited as issues by community members, the Electoral while improving connections to the street and the public Advisory Committee and the CVRD. realm

In Cobble Hill, commercially zoned areas are clustered in Cobble Hill Village and at key signalized intersections along the Trans Canada Highway, particularly at Fisher Road. Recently, the first large format store in the region, a Rona building supplies store, opened at the intersection of the Trans Canada Highway and Fisher Road, replacing a smaller general hardware and building supply outlet. Both current OCPs have policies to minimize and strictly regulate strip development to maintain efficiency of the highway, minimize the type of commercial sprawl affecting other sections of the Trans Canada Highway on Vancouver Island, and maintain the highway corridor’s scenic qualities.

In Shawnigan Lake, commercial services are also local serving. The majority are located in Shawnigan Village near the lake itself. Despite its small size, Shawnigan Village is home to a Subway sandwich shop, the only franchise restaurant in the planning area

Industrial development: Industrially zoned areas, like Small-scale, agri-food related manufacturing industries including, wine commercially zoned areas, are limited. In Cobble Hill, just 2.47% making and commercial scale aromatherapy distillation, shown at Cobble Hill’s Aromatherapy Farm Cooperative, are growing in the planning area. source: Aromatherapy farm 85

Cobble Hill – Shawnigan Lake Community Profile: Shared past, Common future

c) Expanding and improving local services to reduce the A major petroleum tank farm was developed in Cobble Hill at number of shopping trips out of the community. Hatch Point in 1982 on the site of a former copper concentrate d) Better diversifying local tax requisition to reduce and aggregate ship loading facility. The facility is used to this day reliance on residential taxes. and has been zoned “transportation based industrial.” No additional lands or water areas in Electoral Area C are to be 2) Develop clear and coordinated policies on service made available for similar purposes. commercial development along the Trans Canada Highway and major arterials to strictly limit this type of In Shawnigan Lake, the following sites are designated for development in the planning area. industrial use: 3) Develop clear and coordinated policies to support the - Owl Road Gravel Processing site (Lot 3, Plan 2589) intensification of commercial activities in existing village - Sylvester Road industrial site – Land Use Contract (Lot A, centres. Plan 33779) - Malahat Station industrial mill site (Title #3492351) 4) Develop and adopt clear, simple and supportive polices for the large number of home-based businesses located Summary of Recommendations in the planning area.

Following a review of their existing documents, Electoral Area B and Electoral Area C should consider developing a specific Economy and Economic Development section for the new South Cowichan OCP. Some of the policy goals the section could consider include:

1) Work with the Cowichan Region Economic Development The Cowichan Region Economic Development Commission (CREDC) to establish local economic Commission (CREDC) is the region’s economic development policy goals with respect to: development agency. The agency has recognized a) Prioritizing the types of development they wish to business retention and expansion as a priority issue. encourage in the area based on industry sectors Their Cowichan First program is working to identify used by the CREDC (i.e. forestry, retail, agri-food, issues and challenges for local businesses as a first step education, film and tourism). in a longer-term economic growth strategy. Preliminary b) Better supporting and coordinating with existing recommendations are expected by June 2008. agri-food producers to make locally grown and produced products available in planning area restaurants, food stores and tourist venues.

Cobble Hill – Shawnigan Lake Community Profile: Shared past, Common future

8. Development Permit Areas & Current Zoning - Water use.

The CVRD uses zoning and development permit areas (DPAs) to The current zoning framework in both Shawnigan Lake and regulate land usage and the shape of development on individual Cobble Hill seeks to maintain both communities’ rural landscapes lots. where forestry and agriculture are viable, to protect groundwater and to locate commercial and industrial uses efficiently where Zoning policies control land usage and how much of that use servicing already exists. (density) is permitted on a specific parcel (the “where” and “how much” of development), while DPAs regulate how a development Development Permit Areas (DPAs): DPAs are designated in is to be built (i.e., form and character, environmental protection both Shawnigan Lake and Cobble Hill to: requirements, etc.). The CVRD creates DPAs as overlay zones on - Protect environmentally sensitive areas; top of regular zoning to provide guidance for landowners and - Protect and enhance surface water and groundwater developers to address: - Enhance both Shawnigan Village and Cobble Hill Village - Protection of the natural environment, its ecosystems as community social and commercial service centres; and, and biological diversity; - Protect agriculture. - Protection of development from hazardous conditions; - Protection of farming; Currently, the CVRD has one of the most well-developed DPA - Revitalization of an area in which commercial use is programs in the province. In both Shawnigan Lake and Cobble permitted; Hill, DPAs are used to shape development on a site-specific basis - Establishment of objectives for the form and character of to realize the goals and objectives set out in each community’s intensive residential development; and current OCP. In most cases the CVRD has designated each DPA - Establishment of objectives for the form and character of for more than one reason. commercial, industrial or multi-family residential development. The following environmental DPAs are in place in the planning area: Current Situation - Shawnigan Lake (Electoral Area “B”) –Rural Community Residential DPA, Streamside Protection DPA, Zoning: In Electoral Areas B and C, the CVRD divides the land Lakeshore Protection DPA, Stormwater Management DPA, base into the following zoning categories to direct that specific Riparian Areas DPA, Village Core Commercial DPA, uses occur in appropriate locations throughout the regional Shawnigan Station DPA, Sooke Lake Road DPA district: - Cobble Hill (Electoral Area “C”) – Trans Canada - Forestry and agriculture; Highway; Riparian Areas Regulation, Cobble Hill Village - Residential; Mixed Use Area DPA, Cobble Hill Village Core Commercial - Commercial; Area DPA, Cobble Hill Village Multi-Family Residential - Parks and institutional; Area DPA - Industrial; and

Cobble Hill – Shawnigan Lake Community Profile: Shared past, Common future

Innovations considered a network of green infrastructure and includes lands of ecological value and regional significance in public The CVRD has adopted best practices by designating an or private ownership, protected and unprotected. Local Agricultural Protection DPA in the Mill Bay-Malahat (Electoral governments also often make a commitment that a certain Area ‘A’) OCP (Section 14.7 p.80) for urban land adjoining the amount, e.g. 90 percent of growth over the next 25 years ALR, recognizing that agriculture is a prominent land use in Mill will occur within the urban containment boundary. This Bay and growth in the area creates the potential for land use commitment is backed up with zoning policies both within conflicts. The purpose is to minimize urban encroachment on (urban-side) and outside of (rural-side) the UCBs. On the agricultural land and farming activities. Guidelines include 15 rural side, zoning focuses on large lots to maintain a viable metre (50 foot) wide landscaped buffers between the structure of lots for the working landscape and to ensure development and agricultural land, principal buildings setback at maximum ecological functioning of aquifers and watersheds. least 30 metres (100 foot) from agricultural land, and lower UCBs also help to prevent the piecemeal erosion of rural densities adjacent to the ALR. The landscaped buffer may areas by directing development into serviced areas. They accommodate walkways, bikeways or passive recreational uses can prevent the conversion of private forested land from the (such as picnic areas and lookout areas). The Agricultural forestry or working landscape to a rural sprawl or suburban Protection DPA does not apply to renovations of existing single landscape. family dwellings and accessory uses. In the South Cowichan OCP planning area UCBs could be The Mill Bay-Malahat (Electoral Area “A”) OCP designates a UCB particularly effective for enhancing existing town and (at section 7.9) that does not allow urban residential densities neighbourhood centres -- Cobble Hill Village and Shawnigan outside of the UCB, this approach to UCBs can be strengthened Village in particular as well as the working landscapes in to address a variety of growth management issues and CVRD both Electoral Areas. Specifically, the use of UCBs in the goals. South Cowichan OCP planning area could help to:

Some innovative planning approaches that could be considered - Maintain the rural character of both communities; for Electoral Areas B and C include: - Encourage residential development in Cobble Hill Village and Shawnigan Village; and Urban Containment Boundaries: Urban growth or - Foster the agricultural land resource and the farming containment boundaries (UCBs) are an important and well economy; accepted growth management tool in BC. All of the regional growth strategies in the province contemplate urban Land Use Planning Targets: As development pressures containment and four of the six use UCBs. UCBs are lines grow planning is becoming more precise to ensure drawn around urbanized areas beyond which urban-type communities achieve the visions set out in OCPs. Local uses will not extend. Local governments establish UCBs governments are including land use planning targets in through a combination of zoning and infrastructure servicing OCPs and DPA guidelines to set measurable standards to limits. The land in a natural state outside of the boundary is meet plan policies. These targets or measurable standards

Cobble Hill – Shawnigan Lake Community Profile: Shared past, Common future

can be evaluated on an annual basis or when the OCP is that for DPAs designated for protection from hazardous reviewed, ideally on a five year basis. They send a clear conditions local government may require an engineer’s message to the community and developers about the kind report]. of quality a local government expects in applications for development. While some communities have dozens of If an OCP includes a provision for development approval targets for each policy topic in an OCP (Whistler report on information the local government must enact a bylaw over 200 indicators on an annual basis) two or three per establishing procedures and policies on the process for chapter may be appropriate for rural areas. requiring, and the substance of, the information. Several local governments, including the Regional District of Central As examples, simple targets may include: Okanagan, have enacted generic terms of reference for the - No net loss of land in the ALR various reports that they require from applicants. The - 75% of new development within UCBs; assessment process may be triggered upon rezoning, - 10% effective imperviousness on each site (this means development permit, and temporary commercial and that although an urban site may be covered 50% in industrial use permit applications. While an assessment house and driveway – impermeable surfaces through cannot automatically be triggered upon subdivision, OCP which water cannot infiltrate back into the soil – because policies can encourage the Approving Officer to require water is taken from the impermeable surfaces and assessments or information under certain circumstances. directed to the permeable surfaces only 10% of the To avoid uncertainty, local governments can designate water on the site is not returned to the ground); development permit information areas in all locations where an assessment may be warranted upon subdivision. Impact Assessment: Similarly to DPAs, local governments may specify in the OCP areas or situations for which Finally, many local governments are adopting an integrated development approval information may be required. This (economic, social and environmental) scorecard or means that the local government may ask the developer to development checklist that reviews a development for the pay for information on the anticipated impact on the entire set of community goals. It assists staff to rate a community of the proposed activity or development. development based on a common set of criteria and also Usually this information is provided in the form of educates applicants about what the local government professional reports or studies on the environmental expects from them. significance of a property, the commercial impact of a proposed development, or its transportation impacts. The Environmental DPAs and Provincial Standards: The use of impact assessments helps local governments to trend for local governments in B.C. is to define ESAs and prevent damage to sensitive ecosystems, community DPAs for protection of the natural environment based on the economies and transportation, avoiding the cost of having provincial government’s approved sensitive and other to correct problems after the fact. Preventing harm before ecosystem map codes and descriptions. This standard it occurs is significantly more cost effective than dealing provides a province-wide definition for different ESAs, and with unanticipated changes in a community. [Please note allows local governments to tailor DPA guidelines (in

Cobble Hill – Shawnigan Lake Community Profile: Shared past, Common future

subsections) to the specific needs of each particular CD zones assist local governments to respond to landscape ecosystem-type. The specific subsections should list the level details and community goals for new greenfield sensitive ecosystem subclasses and their description, e.g. development or the redevelopment of larger sites. They are “forest” would cover Old Forest, Old Forest: coniferous, Old ideal for sites that should receive innovative treatment, are Forest: mixed, and Woodland. There can also be general in strategic locations, have topographical constraints, or are guidelines that apply to all ecosystem types to deal with environmentally sensitive. Local government staff find the water and water quality, air and air quality, species at risk, CD zone approach easier for negotiating amenities, such as and agriculture and ESAs. The Islands Trust Fund recently additions to parkland, waterfront access and rehabilitation, redeveloped the Islands Trusts DPAs for protection of the tree retention, and innovative rainwater management, that natural environment based on this provincial standard. might not otherwise be obtained on the parcel-by-parcel basis of conventional zoning. CD zones complement DPAs To create a more fine grained DPA system for protection of by creating a comprehensive planning process for larger the natural environment the CVRD has the benefit of the sites. CD Zones may be relevant for consideration in Cobble East Vancouver Island and Gulf Islands Sensitive Hill Village and Shawnigan Village. Ecosystems Inventory for information about the qualities of the region’s ESAs and where ecosystem types are located. Enforcement of Development Permit Areas: DPAs are CVRD staff and Board are already experienced in the use of the most effective way to ensure that development DPAs and this type of fine-tuning will make the DPA regime conforms to community goals for the environment, more effective. DPAs may also reference best management agriculture and form and character on a site-specific basis. practices document that give more technical direction to However, they are difficult to enforce as their enforcement applicants. requires applying to court for an injunction to order the permit holder or non-permit holder to cease activities. Many Comprehensive Development Zones: Several local local governments prefer to back up their DPAs with governments are using comprehensive development (CD) regulatory bylaws, such as soil removal and deposit, that zones for the development of larger parcels of land. Each allow staff to issue a ticket to enforce environmental CD zone is unique because it is tailored to the site-specific standards rather than have to rely on the costly court goals for the property. It allows local government to process. This two-pronged approach allows a local negotiate detailed guidelines and specifications for all government to set site-specific standards for development aspects of development in an integrated manner. It may through a DPA that meets the requirements of one or more allow a range of uses, specify where on the site those uses regulatory bylaws, and also to have more simple means to will occur, the maximum density of each use, the enforce environmental standards by ticketing. The CVRD maintenance of ecological systems, parkland, and natural could enhance its extensive use of DPAs by enacting areas. The components of CD zones are depicted on a map regulatory bylaws that allow it to enforce the DPAs more attached as a schedule, in a master development plan, or as efficiently. design guidelines. Summary of Recommendations

Cobble Hill – Shawnigan Lake Community Profile: Shared past, Common future

Currently, the CVRD has one of the most well-developed DPA programs in the province. Both Shawnigan Lake and Cobble Hill use them extensively to shape development on a site-specific basis to realize the goals and objectives set out in each community’s current OCP. The DPA and zoning regimes could, however, be further developed and expanded. The following options are presented for consideration to be included in the South Cowichan OCP:

1) Strengthen existing DPA guidelines by including more detail and adding diagrams and images.

2) Consider designating Urban Containment Boundaries (UCBs) in the OCP around existing neighbourhood centres (Shawnigan Village and Cobble Hill Village) and set targets for the percentage of development that will occur within the UCBs.

3) Develop land use planning targets for each chapter of the OCP to establish measurable goals.

4) Consider designating some parcels of land within UCBs as appropriate for Comprehensive Development Zones, in particular Shawnigan Village and Cobble Hill Village.

5) Continue development of CVRD Board-mandated, sustainability-driven development checklist or scorecard for evaluation applications.

6) Develop a straight forward impact assessment process in DPA guidelines.

7) Revise the DPAs for protection of the natural environment to be based on the ecosystem types set out in the Eastern Vancouver Island and Gulf Islands Sensitive Ecosystems Inventory and map codes;

8) Explore the benefits of enacting regulatory bylaws to supplement the enforcement of DPAs.

Cobble Hill – Shawnigan Lake Community Profile: Shared past, Common future

9. To Learn More Living By Water This section provides additional resources linked to this http://livingbywater.ca/ document’s sections. Ministry of Environment, Environmental Stewardship Division. Environmentally Sensitive Areas 2006.

Ecosystems at Risk in British Columbia Environmental Best Management Practices for Urban and Rural http://www.env.gov.bc.ca/wld/documents/douglasfir.pdf Land Development in British Columbia http://wlapwww.gov.bc.ca/wld/documents/bmp/urban_ebmp/urb Egan, B. 1999. The Ecology of the Coastal Douglas-fir Zone. an_ebmp.html Ministry of Forests. Available at: http://www.for.gov.bc.ca/hfd/pubs/docs/Bro/bro30.pdf Quale, M. and S. Hamilton. 1999. Corridors of Green and Gold. UBC. 50 pp. Available at: Environment Canada, Canadian Wildlife Service. 1999. Sensitive http://mtwatercourse.org/Realtors/Greenway_economic_study.p Ecosystem Mapping http://www.env.gov.bc.ca/sei/ df

Flynn, S. 1999. Ecosystems at Risk in British Columbia. Coastal Riparian Areas Regulation Douglas-fir Ecosystems. Ministry of Environment, lands and http://www.env.gov.bc.ca/habitat/fish_protection_act/riparian/ri Parks. Available parian_areas.html at:www.env.gov.bc.ca/wld/documents/douglasfir.pdf Marine Areas

Ministry of Environment, Environmental Stewardship Division BC Land Act Environmental Best Management Practices for Urban and Rural http://www.qp.gov.bc.ca/statreg/stat/L/96245_01.htm Land Development in British Columbia http://wlapwww.gov.bc.ca/wld/documents/bmp/urban_ebmp/urb Green Shores Project an_ebmp.html http://www.greenshores.ca/sites/greenshores/documents/media/

109.pdf Proulx, G. 2003. A Field Guide to Species at Risk in the Coast

Forest Region of British Columbia. Interfor and Ministry of Water, Living By Water Land and Air Protection. http://livingbywater.ca/ Riparian Areas Ministry of Environment press release. June 2007. Go Fish BC. Fish Wizard http://www2.news.gov.bc.ca/news_releases_2005- http://www.fishwizard.com/ 2009/2007ENV0073-000764.htm

Cobble Hill – Shawnigan Lake Community Profile: Shared past, Common future

Parks Canada. Canada’s National Marine Conservation Areas MoFR website www.for.gov.bc.ca/Protect System Plan: The Georgia Strait. Available at: Green Branches and Fallen Leaves A History of Shawnigan Lake 1867-1967. Alice Gibson. Originally printed by the Cowichan http://www.pc.gc.ca/progs/amnc-nmca/plan/pac_E.asp Leader. Reprinted 1976. Domestic Water and Management British Columbia Forest Discovery http://www.cserv.gov.bc.ca/lgd/environment/drinking_water.htm Centre. www.discoveryforest.com http://www.env.gov.bc.ca/wsd/index.html http://www.env.gov.bc.ca/wsd/water_rights/legislation.html Fire Protection and Wildfire Interface http://www.health.gov.bc.ca/protect/dw_index.html http://webmaps.gov.bc.ca/imfx/imf.jsp?site=imapbc Community-planning guides and resources are sources of useful http://www.apeg.bc.ca/prodev/events/rainwater_management.ht information: ml FireSmart – Protecting Your Community from Wildfire (2nd Edition, Agricultural Resources Partners in Protection, 2003) www.partnersinprotection.ab./ca

Forest Land Resources Firestorm 2003 Provincial Review (The Hon. G. Filmon, Association of British Columbia Forest Professionals 2004) www.2003.firestorm.gov.bc.ca website www.abcfp.ca Water Supply for Public Fire Protection (Fire Underwriters Survey, Land Management Guidebook 28 (A Field Guide for Site 1999) Identification and Interpretation for the Vancouver Forest Region, BC Ministry of Forests and Range, 1994 S-100 (BC) Basic Fire Suppression and Safety (MoFR, 2004)

Ministry of Environment Sensitive Ecosystems National Fire Protection Association (NFPA) Standards (NFPA, Inventory www.env.gov.bc.ca/rib/cbs/sei/vancouverisland Massachusetts, USA)

The Geology of Southern Vancouver Island. Chris Yorath. Cowichan Valley Regional District website www.cvrd.bc.ca Harbour Publishing Co. Ltd., 2005 MoFR website www.for.gov.bc.ca/Protect United Nations Intergovernmental Panel on Climate Change. 2007. www.ipcc.ch Mineral and Aggregate Resources www.gravelbc.ca/apabc/mission.html Cowichan Valley Regional District website www.cvrd.bc.ca www.em.gov.bc.ca/Mining/Geolsurv/Surficial/forum/forum.htm

Cobble Hill – Shawnigan Lake Community Profile: Shared past, Common future

www.em.gov.bc.ca/Mining/Geolsurv/Surficial/aggregate/default.h City of Nanaimo Steep Slopes Guidelines tm http://www.nanaimo.ca/uploadedfiles/Site_Structure/Development_Ser vices/Engineering_and_Environmental_Services/Environmental_Servic Planning and Servicing es/SSguidelines.pdf

Residential Development Settlement Pattern and Form with Service Costs Analysis, (2004)

Halifax Regional Inadequate Shelter in the Cowichan Valley, Fall 2006: Municipality http://www.halifax.ca/regionalplanning/Publications/ http://socialplanningcowichan.ca/pdfs/housing_report_final.pdf PatternBook.pdf

LEED Neighborhood Design criteria Sprawl Hurts Us All (2003) Sierra Club of http://www.usgbc.org/DisplayPage.aspx?CMSPageID=148 Canada, http://www.sierraclub.ca/national/postings/sprawl- Canada Mortgage and Housing Corporation hurts-us-all.pdf www.cmhc.ca/en/inpr/imhoaf/afhoid/pore/index.cfm

Smart Growth BC, Affordable Housing Do Development Cost Charges Encourage Smart Growth and http://66.51.172.116/Default.aspx?tabid=101 High Performance Building Design? (2003) Coriolis Consulting Case Studies Strategic Approaches to Housing Corp for West Coast Environmental Law www.actprogram.com/ http://www.wcel.org/wcelpub/2003/14083.pdf Housing Strategies by category of need

www.bchousing.org/aboutus/publications/external Regional District of Nanaimo www.rdn.bc.ca Case Studies by Building Type

www.gvrd.bc.ca/growth/GOMDH2003.htm Federation of Canadian Municipalities, Partners for Climate

Protection Bowen Island Official Community Plan http://www.sustainablecommunities.fcm.ca/Partners-for-Climate- www.bimbc.ca/files/bylaws/Bylaw%20No.%20139%20- Protection/ %20OCP.pdf

Bowen Island Snug Cove Village Plan Halifax Regional Municipality, Climate Smart, Community Action www.bimbc.ca/files/bylaws/BIM%20Bylaw%20No.137,%202004. Guide to Climate Change and Emergency Preparedness. pdf http://www.halifax.ca/climate/documents/CommunityActionGuide City of Castlegar Official Community Plan, Housing Policy forClimateChange.pdf www.castlegar.ca/ocp/ocp_housing.htm

Alberni-Clayquot Regional District, Official Community Plan for Natural Hazards South Long Beach www.acrd.bc.ca/cms.asp?wpID=125 City of Abbotsford www.abbotsford.ca

Cobble Hill – Shawnigan Lake Community Profile: Shared past, Common future

Fausold, C.J. and Lileihom, R.J. “The Economic Value of Open British Columbia Real Estate Association (BCREA) Space: A Review and Synthesis.” Environmental Management Vol. http://www.bcrea.bc.ca/ 23, No. 3 1999: pp307–320. Canada Mortgage and Housing Corporation (CMHC) Affordable Housing http://www.cmhc-schl.gc.ca

Canadian Rural Partnership - Rural Team BC Canadian Cohousing Network http://www.rural.gc.ca/team/bc/bchome_e.phtml http://www.cohousing.ca/

Planning for Housing 2004, An Overview of Local Government Canadian Housing and Renewal Association (CHRA) Initiatives in British Columbia, Housing Policy Branch, BC Ministry http://www.chra-achru.ca/ of Community, Aboriginal and Women’s Services http://www.housing.gov.bc.ca/housing/planhouse/2004/ Canadian Manufactured Housing Institute (CMHI) tools.htm http://www.cmhi.ca/

Rental Housing Planning Guide (2002) BC Ministry of Community, Co-operative Housing Federation of BC (CHF BC) Aboriginal and Women’s http://www.chf.bc.ca/ Services http://www.housing.gov.bc.ca/housing/rentguide/ Social Planning Cowichan Rowan Property Management, Duncan BC (Rental Housing www.socialplanningcowichan.ca Market) www.rowanproperty.ca From: Inadequate Shelter in the Cowichan Valley, Fall 2006

Shared Servicing for Rural Cohousing: A Sustainable Recommend Official Community Plans consider: Approach to Rural Habitation - CMHC - Definitions of affordable housing and non-market housing; http://www.cmhc-schl.gc.ca/en/imquaf/himu/loader.cfm?url=/ - A policy confirming the need for housing suitable for a commonspot/security/getfile.cfm&PageID=45808 broad range of household types and income groups; - A general policy relating to the required inclusion of Useful Websites affordable housing in market housing projects; - A general policy relating to “no net loss” of existing Affordability and Choice Today affordable housing; http://www.actprogram.com/ - A policy confirming that all master planning for new growth makes provision for a portion of affordable housing, British Columbia Non-Profit Housing Association achieved through affordable ownership housing, purpose- http://www.bcnpha.bc.ca/ built, secondary suites, setting aside land for development by a non profit housing provider; and

Cobble Hill – Shawnigan Lake Community Profile: Shared past, Common future

- Integrated planning that includes adequate linkages for iii) impacts on adjacent properties pertaining to traffic, privacy, transportation services. screening, and views can be adequately managed. - Establishment of pre-designating and pre-zoning for: The following are considered possible locations for higher density o Multi-family housing in master planned areas to housing: ensure a good supply of land that is “ready to go” i) the upper floors of commercial buildings; as market demand changes. ii) the Abbeyfield site on the west side of Miller Road; o Manufactured homes. This allows for the iii) redevelopment of the lots on the west of Miller Road continued development of an affordable home between Bowen Court and the Government Road intersection; ownership alternative through lower construction iv) the east side of Miller Road north of the civic facility costs, smaller lots, and shared land resources. precinct; v) the lands between Bowen Island Community School and Senior Road on the north side of Government Road; and From Coquitlam: vi) redevelopment of the lots in the Davies Road area. Maintain a planned supply of serviceable land for residential d) Limit stand-alone attached housing to a townhouse or development of various types and densities. (up to ten years in rowhouse format. Densities up to a maximum of 12.5 units per advance, includes new land and up-zoning) City owned land is net developable acre will be considered appropriate. Proposals especially valuable for providing affordable housing opportunities. with densities greater than 12.5 units per net developable acre, Minimize regulatory barriers for developers. Allow secondary but not greater than 17.5 units per net developable acre, will be suites considered only if: i) density is transferred to a site in the Cove from elsewhere (Bowen Island) Snug Cove Village Plan (Bylaw 137, on the Island; or 2004) Page 11 ii) the proposal involves other than traditional market based housing, such as non-market, rental, special needs, 4.1.3 Residential Development Policies cooperative, co-housing, or price controlled, thus providing a) Reinforce and strengthen the viability of the Village center by alternative housing choices for Island residents. accommodating residential uses within commercial buildings. b) Encourage the provision of a wide variety of housing forms In addition all housing proposals that require rezoning will be within Snug Cove Village. required to incorporate a demonstrated community benefit that c) Consider the zoning of sites within the Village Residential may include: the provision of non market or rental housing, designation to accommodate higher density housing in the form special protection of environmentally sensitive areas, dedication of townhouse or rowhouse within the Village centre provided that of land to the Municipality, or the use of green building the following criteria can be satisfied: technology. Proposals that include a transfer of density i) the scale and character of the development can blend in component are particularly encouraged. with the surrounding natural environment; e) Ensure that new higher density residential development does ii) the site can be adequately serviced with Cove Bay water not exceed a height of 2.5 stories. and Snug Cove sewer; and

Cobble Hill – Shawnigan Lake Community Profile: Shared past, Common future

f) Notwithstanding any policy in this Plan, the Snug Point area planned residential area designated Cates Hill Residential on the shall remain as a single family dwelling area and shall not Land Use Plan. accommodate higher density forms of housing. g) Accommodate development proposals that include small lot 4.1.5 Village Periphery Development residential development at a density of 8 lots per net developable acre with a minimum lot size of 4000 sq. ft. For such The lands at the periphery of the Village center (within 1 development, controls will be placed on the lots to ensure that kilometer radius of the Miller Road / Government Road the size of the houses is in keeping with the scale and character intersection) need to be carefully managed in order to avoid of a village ambiance. the creation of a disjointed and sprawled Village center. Being at h) Avoid development that is inconsistent with the scale and the periphery of the Village center, appropriate land uses and diversity of a village. densities would be at a lesser scale and intensity than land i) Minimize the impact upon adjacent single dwelling areas by situated within the Village centre. As well, it would desirable to transitioning down to duplex or small single dwelling lots avoid the development of commercial and community / civic adjacent to single dwelling areas. facilities at the periphery of the Village center, except in cases j) Encourage the development of new, affordable forms of where it can be demonstrated that a proposed commercial use ground-oriented higher density housing by engaging in dialogue can not be accommodated within the Village center and all with not-for profit societies on Bowen Island, GVRD Housing options within the Village center have been exhausted. The Corporation, and other agencies. Regarding lands that the intent is to provide a seamless transition between the land within Municipality will acquire from the GVRD as part of the surplus the Village center and the rural land that is outside of the Cove. lands package, the Municipality will address the affordable housing issue when considering the preferred use and Bowen Island Official Community Plan Bylaw No. development of those lands. 1393.1.3 k) Require all multi family housing and small lot single dwelling development within the Village Residential and Cates Hill Rural Land Use: Rural Residential Policies Residential designations to obtain a Development Permit. The treatment of edge conditions (new housing abuts or is across the 3.1.2.1 Low building density is encouraged within the areas of street from lower density forms of housing) is particularly the island open to Rural Residential development except that important. cluster housing may be permitted provided it does not detract l) Transferring density from the environmentally sensitive areas from the rural character of the area and the overall building of the Island to the Cove will be strongly encouraged. Where this density of the area is maintained; can be achieved, bonuses in the form of increased densities, 3.1.2.2 Regulations for location of lots and lot sizes in Rural reduced parking standards, and reduced development fees will Residential Areas shall be established in respect of: be considered. a) The size, density and character of neighbouring parcels of m) Accommodate single family, multi family, educational, pre- land; school, and civic use facilities within the comprehensively b) Accessibility to proposed parcels and availability of potable water supply for residential purposes;

Cobble Hill – Shawnigan Lake Community Profile: Shared past, Common future

c) Sewage disposal capability of the parcels to be created or - provide an assessment as to the suitability of the proposed the existence of public sewer facilities; development to respond to housing d) Distance from commercial facilities and public facilities; requirements on Bowen Island; e) The character of community and of neighbourhood; 3.1.4.4 Affordable and special needs housing shall be considered f) Preservation of greenspace; one form of community amenity that may be considered in g) Preservation and conservation of areas common to a strata exchange for slightly higher density when provided for in a development by way of zoning regulation that precludes zoning bylaw; development of structures or uses incompatible with 3.1.4.5 Affordable and special needs housing should be protection of the natural amenities; permitted in any location on Bowen Island; 3.1.4.6 Multi-family or attached housing shall be subject to a 3.1.4 Affordable Housing, Rental Housing, Special Needs development permit designation that establishes guidelines for Housing the form and character of such development; 3.1.4.7 Zoning for multi-family or attached housing shall require 3.1.4.1 Cluster housing, communal ownership or occupancy of the following amenities as a minimum for the development to housing, boarding and lodging accommodation, and multi-family proceed: and attached housing on a parcel shall be permitted as a) Any residual land not used for access, parking, or the building affordable footprint shall be permanent green space. housing or special needs housing subject to other policies of this b) Strategically located green space dedicated for public Plan, to provide for a mutually supportive environment for ownership shall be part of the permanent green space; persons of any age or persons with specific needs within the 3.1.4.8 Multi-family or attached housing shall be designed as community while providing for maximum opportunity for garden apartments or row housing and shall be limited in density independent living. Such housing shall be restricted in maximum to approximately four (4) units per development; size and density in order to maintain the rural residential 3.1.4.9 There shall be no overall increase in dwelling unit density character of the island; through the provision of multi-dwelling unit housing on any 3.1.4.2 Housing expressly created as affordable housing or parcel above that allowed for other forms of residential housing special needs housing shall be provided for by a Housing unless permitted by transfer of development rights or other Agreement or by conditions of a zoning bylaw that allow for methods provided by this Plan; development of such housing; 3.1.4.10 Affordable housing and special needs housing may be 3.1.4.3 Council may, as a requirement of a rezoning proposal for provided as rental housing; residential development, require that the proponent pay for the 3.1.4.11 Seniors’ supportive housing should be located close to costs of a Social Impact Analysis by an expert qualified in social community services. For the purpose of OCP policy, such housing analysis which will: supportive housing for up to 24 residents, including staff, should - assess the impacts of the proposed development on the be considered to be the same dwelling density as four dwellings affordability of housing on Bowen Island; units; - identify any existing deficiencies in types and numbers of 3.1.4.12 Senior supportive housing should be located adjacent to housing units for population groups with special needs; Bowen Court within the Snug Cove land use designation.

Cobble Hill – Shawnigan Lake Community Profile: Shared past, Common future

- Instream Flow Guidelines for British Columbia; Development Permit Areas and Current Zoning - Standards and Best Management Practices for Instream Works; Central Okanagan Regional District. Terms of Reference for - Riparian Areas Regulation Assessment Methods; Professional Reports for the Planning Services - Best Management Practices for Lakeshore Stabilization; Department http://www.regionaldistrict.com/docs/planning/Hand - Environmental Objectives and Best Management Practices out%20TofR%202005.pdf for Aggregate Extraction; - Stream Stewardship: A Guide for Planners and Developers; Curran, D. Protecting the Working Landscape of Agriculture - Access Near Aquatic Areas: A Guide to Sensitive Planning, (Vancouver: West Coast Environmental Law Association, 2005). Design and Management; - Stormwater Planning: A Guidebook for British Columbia; and Curran, D. and Environmental Law Centre. Green Bylaws Toolkit - Community Green Ways Linking Communities to Country and (Vancouver: Wetland Stewardship Partnership, 2007) Chapters 6 People to Nature. (Zoning) and 7 (DPAs). Ministry of Environment. East Vancouver Island and the Gulf Development Checklists: Islands Sensitive Ecosystems City of Port Coquitlam. Sustainability Inventory http://www.env.gov.bc.ca/sei/van_gulf/index.html Checklist http://www.portcoquitlam.ca/__shared/assets/Sustaina bility_Checklist2040.pdf Ministry of Environment. Standard for Mapping Ecosystems At New Westminster Smart Growth Development Risk In British Columbia: An Approach to Mapping Ecosystems at Checklist http://www.newwestcity.ca/cityhall/planning/06publicat Risk and Other Sensitive Ecosystems (Appendix D) ions/02Zoning/pdf/Smart%20Growth%20Development%20- 2006 http://ilmbwww.gov.B.C..ca/risc/pubs/teecolo/habitat/asset %20Checklist%202004.pdf s/standards_for_mapping_ear_version1.pdf). Vernon Smart Growth Development Checklist http://www.vernon.ca/services/pde/documents/smart_ West Coast Environmental Law. Smart Bylaws growth_development_checklist.pdf Guide www.wcel.org/issues/urban/sbg see section on agricultural DPAs Ministry of Community Services. Development and Temporary at: www.wcel.org/issues/urban/sbg/Part2/workinglands/ Use Permit Areas (Bulletin No. G.5.0.0, 2000). DPA, form and character DPAs at: www.wcel.org/issues/urban/sbg/Part3/design Ministry of Environment. Develop with Care – Best Management environmental DPAs Practices http://www.env.gov.bc.ca/wld/BMP/bmpintro.html at: www.wcel.org/issues/urban/sbg/Part6/usewisely/DPA - Develop with Care: Environmental Guidelines for Urban and Rural Land Development in British Columbia; - Best Management Practices for Amphibians and Reptiles in Urban and Rural Environments in British Columbia;