Final Application Submission

Bullock Lake Cottages

Application for Official Community Plan Amendment and Rezoning 315 Robinson Road, Salt Spring Island, BC Prepared by: Cameron Chalmers Consulting Inc.

On behalf of: 0915294 BC Ltd. c/o Platform Properties Ltd.

April 2013

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Executive Summary

This document is submitted in support of the application by 0915294 BC Ltd. (the “Owner�) to amend the Salt Spring Island Official Community Plan (OCP) and Land Use Bylaw (LUB) to permit the completion of the Bullock Lake Cottages project. It details the Owner’s application submission and includes the following sections to clearly articulate, rationalize, and support the application: 2. Vision Statement 3. Introduction 4. Site Description 5. Project Proposal 6. Detailed Application 7. Application Support 8. Technical Services and Studies Summary 9. Application Process and Consultation 10. Sustainability Statement The application is for 50 cottages and a +/- 6,000 square foot amenity building in the first phase, and additional cottages in a second phase. The number of cottages in phase 2 will be determined at a later date. The first phase cottages are effectively built, and the 50 cottages are already strata-titled. The application is to ensure these cottages have appropriate OCP and zoning regulations applied to the land to permit the completion of the first phase cottages and the use proposed in this application.

As an amenity, the Owner will construct a +/- 6,000 square foot multi-purpose amenity building that will be available to the community, cottage owners, and visitors for gatherings, learning, and celebration as part of the first phase. Phase 2 will occur in the future and consist of the completion of additional cottages on existing foundations, subject to available servicing capacity and market demand. Cottages ultimately proposed for the entire project will not exceed the 123 cottages approved in the previous development application.

The cottages will be individually owned by people who have their primary residence elsewhere, and use the cottages as recreational property. Individual owners will also have the option to include their cottage in a professionally managed rental pool for visitors and the travelling public when they are not using them.

The project is serviced by existing water and sanitary treatment facilities, as well as an established pattern of public and private roads that were previously constructed.

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The OCP and LUB amendments are intended to acknowledge this project is unique. It is unique in that it is already constructed for its intended purpose. It is also unique as there are no directly comparable projects on the Island, and accordingly, existing OCP and LUB regulations will not accommodate the project. For these reasons, the Owner’s preferred approach is to create new OCP and LUB designations and regulations tailored to this project.

The following submission will also demonstrate the project can be sustainably serviced on site, and will contribute to the economic, social, and cultural sustainability of Salt Spring Island with minimal additional disruption to the natural environment. In particular, the project will generate significant economic development through construction and operational expenditures that will benefit a range of sectors, thereby furthering the objectives of section 3.1 of the Official Community Plan.

The Owner also intends to undertake an effective public consultation program as part of the application process. Consulting the community on the amenity building and how it, and the remainder of the project, can enhance the “sense of community” and “economic security” of the Island is critical to making the project authentic to Salt Spring Island and its people.

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Table of Contents 1 Executive Summary ________________________________________ 3 2 Vision Statement __________________________________________ 9 2.1 Guiding Principles ____________________________________________________ 10

3 Introduction _____________________________________________ 11 4 Site Description __________________________________________ 13 4.1 Location _____________________________________________________________ 13 4.2 Site Characteristics ___________________________________________________ 14 4.2.1 Physical Improvements on Site _____________________________________ 15 4.3 Land Use Policy and Regulations _______________________________________ 17 4.3.1 Policy History _____________________________________________________ 17 4.3.2 Current OCP Designation and Zoning _______________________________ 18

5 Project Proposal _________________________________________ 21 5.1 Project Phasing _______________________________________________________ 22 5.1.1 Phase 1: _________________________________________________________ 22 5.1.2 Phase 2 __________________________________________________________ 23 5.1.3 Phasing Approach ________________________________________________ 24 5.2 The Strata-Title Ownership Model ______________________________________ 25 5.3 Amenity Contribution _________________________________________________ 25 5.4 Vehicular Access______________________________________________________ 26 5.5 Pedestrian Circulation _________________________________________________ 27 5.6 Water Access ________________________________________________________ 27 5

6 Detailed Application _____________________________________ 29 6.1 Official Community Plan Amendment ___________________________________ 29 6.1.1 Proposed OCP Amendment ________________________________________ 29 6.1.2 Draft OCP Amendment ____________________________________________ 30 6.1.3 OCP Amendment Rationale ________________________________________ 31 6.2 Land Use Bylaw Amendment (Rezoning) _________________________________ 31 6.2.1 Proposed Land Use Bylaw Amendment ______________________________ 32 6.2.2 Draft Land Use Bylaw Zoning Amendment ___________________________ 32 6.2.3 Land Use Bylaw Amendment Rationale ______________________________ 33

7 Application Support ______________________________________ 35 7.1 Supporting Official Community Plan Policy Objectives ____________________ 35 7.1.1 Analysis of Supporting OCP Objectives. _____________________________ 35 7.2 Islands Trust Policy Statement _________________________________________ 38 7.3 Supporting Studies and Strategies ______________________________________ 39 7.3.1 Economic Impact Study ____________________________________________ 39 7.3.2 Tourism Strategies ________________________________________________ 40

8 Technical Services and Studies Summary ___________________ 43 8.1 Transportation _______________________________________________________ 43 8.2 Water Supply ________________________________________________________ 43 8.2.1 Water System Description _________________________________________ 44 8.2.2 Water System Permitting __________________________________________ 46 8.2.3 Water Capacity and Supply Studies _________________________________ 46 8.3 Sanitary Sewer Treatment _____________________________________________ 47 8.3.1 Sanitary System Description ________________________________________ 48

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8.3.2 Sanitary Regulatory Agency Permitting ______________________________ 48 8.3.3 Sanitary Demand and Flows ________________________________________ 49 8.4 Water and Sanitary System Ownership and Operation ____________________ 50 8.5 Stormwater Management _____________________________________________ 50 8.6 Solid Waste Management _____________________________________________ 50

9 Application Process and Consultation ______________________ 53 9.1 Community Consultation ______________________________________________ 53 9.1.1 Consultation Efforts To Date _______________________________________ 54 9.1.2 Proposed Consultation Program ____________________________________ 54

10 S ustainability Statement __________________________________ 55 10.1 Environmental Sustainability __________________________________________ 55 10.2 Economic Sustainability ______________________________________________ 56 10.3 Socio-Cultural Sustainability __________________________________________ 57

11 S ummary and Contact Information _________________________ 59 11.1 Project Contacts ____________________________________________________ 59

12 A ppendices ______________________________________________ 61 12.1 Appendix 1: Economic Impact Assessment ____________________________ 61 12.2 Appendix 2: Technical Memorandum: Development Water Demands and Sustainable Well Yield ______________________________________________________ 61 12.3 Appendix 3: Technical Memorandum: Wastewater System Assessment ___ 61

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Vision Statement

Bullock Lake Cottages will epitomize all that Salt Spring Island has to offer.

Combining exceptional owner and visitor accommodation with a multi-purpose community amenity building, it will meld Island residents, cottage owners and visitors in a tranquil lakeside setting. Authentic to the place, its history, and its people, Bullock Lake Cottages will allow residents, cottage owners and visitors alike to experience Salt Spring Island for what it is: a place of arts, a place of culture, a place of sustainable existence, and a place of spirit.

Bullock Lake Cottages will be a place for people to work, to celebrate, to learn, to reflect, and to create. The amenity building will nurture community gatherings and events, and will draw people to the cottages from abroad to learn from local teachers, artisans and healers.

The cottages will create an opportunity for sustainable jobs for a range of Island residents both on site and through the spending of owners and visitors. Becoming a destination draw for tourism on the Island, the Cottages will further economic possibilities for local tourism to benefit tourism operators and local businesses.

In addition to the economic contributions, cottage owners will contribute socially and culturally to the Island as well. Weaving into the social fabric, these owners will not only share, but contribute to the unique Salt Spring Island culture.

The Bullock Lake Cottages will preserve the tranquil setting by minimizing additional impacts on the natural environment, and promoting sustainable development. It will minimize disruption for the lake frontage and nearby wetlands, opting for a more passive than active lakefront experience for visitors. Though families will be welcome, the tranquility and passive setting will cater to mature visitors who appreciate the natural setting.

Based on a vision derived from community engagement prior to and during the application process, and when balanced with the economic development and tourism objectives similarly contained in the OCP, the Bullock Lake Cottages project represents an opportunity to gain significant economic and cultural benefit with minimal additional environmental disruption.

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2.1

Guiding Principles

The project described in this application is based on the following guiding principles: 1. Minimizing additional impacts on the natural environment beyond those already incurred by the development; 2. Reusing and repurposing the 50 built cottages and existing foundations in a manner that creates a sustainable social and economic benefit for Salt Spring Island; 3. Providing a tangible community amenity for the benefit of Island residents through the multi-purpose amenity building; 4. Implementing conservation and environmental sustainability initiatives in all new construction; 5. Ensuring the project can be serviced in a sustainable manner; 6. Developing and implementing an appropriate public consultation approach to maximize the benefit of the project for the community.

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Introduction

Since 0915294 BC Ltd. (the “Owner�) acquired the subject property in August, 2011, they have spent nearly 2 years considering a range of land use options and approaches for the property and the 50 existing cottages on site. More critically, the new Owner has invested significant time and effort to understand the challenges and opportunities facing the Salt Spring Island community. Concerns about water and sanitary servicing have generated considerable study and effort to understand the technical considerations about water provision and sanitary disposal.

This application combines the thoughtful consideration of a development concept that will provide maximum benefit to the Salt Spring Island community with detailed technical information to support the application to demonstrate it can be sustainably serviced.

Though legal options exist for the Owner to have the previous building permits reinstated and to complete the project as a legal non-conforming land use, the Owner has instead opted to undertake an Official Community Plan (OCP) and Land Use Bylaw (LUB) amendment process to re-establish appropriate land use regulations. Unlike earlier attempts to develop the property, the new Owner is prepared to engage in an effective and transparent public process leading to the approval of the project.

The remainder of this document provides details about the property, the proposed project, the proposed OCP and LUB bylaw amendments, the supporting rationale, the technical reports regarding servicing, and a statement about the sustainability approach taken by the project.

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Site Description

4.1

Location

The property subject to this OCP and LUB amendment are located at civic address 315 Robinson Road, approximately 2.8 kilometres from the centre of Ganges on Salt Spring Island.

Figure 1: Location Map

The 14.36 ha (35.48 ac) property consists of 50 developed strata-titled cottages and a former lodge building, as well as four fee-simple lots, legally described as follows: •

Strata Lots 1-51, Strata Plan VIS 4458:

6.20 ha (15.32 ac)

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Lot 2, Plan VIP52850 (PID 017-471-389):

2.02 ha (4.99 ac)

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Lot 3: Plan VIP52850 (PID 017-471397):

2.02 ha (4.99 ac)

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Lot 4: Plan VIP52850 (PID 017-471-401):

2.05 ha (5.07 ac)

Lot 5: Plan VIP52850 (PID 017-471-419):

2.07 ha (5.12 ac)

•

[Note: Lots 2-5 are all Section 7, Range 3 East, North Salt Spring Island, Cowichan District]

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Though the Owner’s holdings include four fee simple lots, no development is proposed on Lot 5. The Owner has elected to leave Lot 5 in its current “Rural� land use, and accordingly, it is not included in the application for land use amendment.

Figure 2: Subject Lands

4.2

Site Characteristics

The property slopes from Robinson Road to the frontage of Bullock Lake and is largely developed. The portions of the property that are not developed with buildings and maintained landscaping are largely overrun with Scotch Broom and small surface cover vegetation over existing cottage unit foundations, roads, and sanitary infrastructure.

The undeveloped portions of the property on Lot 5 are treed and generally undisturbed by development.

The property is bordered by Bullock Lake to the west, an undeveloped road allowance and lake access to the north, Robinson Road to the east, and a stream, wetland, and privately owned land to the south of the undeveloped Lot 5.

The shorefront of Bullock Lake is mostly undisturbed and vegetated, with the exception of one dock structure located on the north portion of the lake-frontage.

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Figure 3: Bullock Lake Shoreline from Dock (West)

Figure 4: Bullock Lake Shoreline from Dock (East)

4.2.1 Physical Improvements on Site Construction of a tourist accommodation development started with a previous owner under the former C-4 zoning, which allowed for a commercial accommodation project.

Presently the majority of the site is either fully or partially constructed for that purpose.

The following is a summary of the physical development existing on site: •

50 cottages on former Lot 1 with an average size of 105.95 m2 (1140 ft2).

Approximately 26 are 95% or more complete, with 23 constructed to 75% completion or greater. One unit is constructed to 60% completion. All units are individually strata titled;

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1 large foundation remaining from the lodge and pool buildings destroyed by fire on Strata Lot 1;

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Paved internal strata roads and parking areas servicing the 50 cottages and the amenity building;

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Foundations for up to an additional 73 cottages, roads, and services on Lots 24.

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Five wells, a water treatment facility with an 88,000 gallon reservoir on Lot 2, and a complete distribution system to all cottages and foundations;

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A sanitary treatment plant on Lot 4, collection infrastructure and septic field system;

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Electrical service infrastructure and complete electrical services; and

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One dock providing access from the cottages to Bullock Lake.

Figure 5: Cottages

Figure 6: Cottages

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Though the project is largely built, it has never been occupied or operated. However, the property and buildings have been well maintained and are in very good condition.

Figure 7: Cottage Interior

Figure 8: Cottage Interior

4.3

Land Use Policy and Regulations

4.3.1 Policy History The subject property was previously designated “Commercial” in the OCP, and zoned “Commercial 4” (C-4) under the previous LUB. Together, these regulations permitted the construction of the 50 existing cottages, the foundations for an additional 73 cottages, lodge building and associated infrastructure. Building Permits were issued to authorize all of the development on the site.

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Though the project was already being developed, the property was downzoned to a rural zoning in 1996. Following the downzoning, construction continued under the pre-existing building permits, enabling the former owner to largely complete the first 50 cottages, lodge building, and construct foundations for the next 73 cottages. As the buildings were being constructed under valid building permits, and because the project had demonstrated a commitment to the accommodation use, construction continued under legal non-conforming status.

Given the history of this project and its legal non-conforming status, the Owner has two options for completing the final occupancy of the strata-titled cottages. The first is to apply to have the building permits reinstated due to the legal non-conforming status and commitment to use exhibited by the construction on the property. The second option is to make application to amend the OCP and LUB to reinstate appropriate land use regulations for the existing and future cottages, as well as a new amenity building.

After considering the options available, the Owner has chosen to seek OCP and LUB amendments to reinstate a suitable regulatory framework. The Owner believes that despite the controversial history of this project, it is important to clarify land use through a transparent public process, versus enforcing the legal entitlements through the courts. This approach affords the community an opportunity to ensure maximum benefit of the amenity building and the economic development opportunities resulting from completion of the project for the Salt Spring Island community as a whole.

Accordingly, the Owner has chosen to file this application, participate in a public process, and await the decision before considering other available options.

4.3.2 Current OCP Designation and Zoning Currently the subject property is designated “Rural Neighbourhoods” in the Salt Spring Island Official Community Plan. This designation is intended to “continue to provide adequate land zoned for medium density residential use and other traditional and compatible rural land uses” (s. B.2.5.2). The land uses contemplated in that designation do not reflect the development on the property, nor the intended land use, necessitating this OCP amendment application to redesignate the lands to a new land use designation.

The OCP also includes the property in several Development Permit Areas. Though Development Permits may be required prior to any additional development of the property, those approvals will be sought later in the process, once the land use regulations are in place.

Following the 1996 downzoning, the subject property was zoned “Rural (R)” under the Salt Spring Island Land Use Bylaw No. 355. This zone permits rural residential uses in 18

single-family dwellings on lots as small as 0.4 ha (.99 ac) on community water and septic systems. However it is clear the zone does not contemplate building forms or uses consistent with the development already existing on the property, or the intended land use outlined in this application. Again, this necessitates an amendment to a new zoning classification to accommodate the project proposed in this application.

Figure 9: Cottage and Bullock Lake

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Project Proposal

The purpose of the OCP and LUB amendment applications is to permit the completion and use of the property as described in this section. The project proposal is generally similar to the earlier development in terms of built form and intended use as nonresidential accommodation. However, there are some fundamental differences regarding the ownership structure, proposed use, and the amenity building that distinguish the current proposal from earlier iterations proposed by the previous owner. This section details the current proposed project.

All of the cottages in the first phase and any future phases will be individually owned, though will be restricted from being occupied as the owner’s principal residence. The individual owners will then have the option to include their cottages in a managed rental pool for rent to the travelling public, as commercial guest accommodation.

Figure 10: Site Plan

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The project will also include a +/-6,000 square foot multi-purpose amenity building in the first phase that will be built by the Owner for the benefit of the community as well as visitors to the cottages.

Self contained water and wastewater treatment systems exist on site and will provide the necessary infrastructure for the project, as described in more detail in the Technical Services section of this application.

5.1

Project Phasing

The project will occur in two primary phases described as follows:

5.1.1 Phase 1: Phase 1 involves completion of the existing 50 strata-titled cottages and construction of the +/-6,000 square foot amenity building as a multi-purpose space for the community and occupiers of the property. Phase 1 is on the lands identified as Strata Lots 1-51.

Specifically, the proposal would be for 50 cottages averaging 105.95 square metres (1,140 square feet), in 37 buildings. These cottages are already substantially constructed on the property, with 24 requiring varying levels of interior finishing work.

Figure 11: Phase 1 Site Plan

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Phase 1 will also entail the commissioning of the existing water and sanitary treatment facilities located on Lots 2 and 4 respectively, in addition to the production water wells located on Lot 1.

5.1.2 Phase 2 The construction of additional cottages in Phase 2 will be considered in the future, subject to available servicing capacity and market demand. Future phases will be located on fee-simple Lots 2, 3, and 4. There are currently existing foundations for 73 cottages constructed under previous development approvals, which combined with phase 1 totals a maximum number of 123 cottages previously approved on the property. The present application will not exceed that number. Any new cottages built in future phases will also be strata-titled and individually owned.

Figure 12: Phase 2 Site Plan

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5.1.3 Phasing Approach The two phases described above are distinguished by the different levels of construction between the 50 existing cottages, which are nearly complete, and the phase 2 cottages, which are constructed to the foundation stage.

Phase 1 is expected to begin immediately after approvals and permitting are secured, and will continue until the completion of the amenity building and sale of the 50 cottages.

Phase 2 will not commence until phase 1 is complete, however there are additional considerations that will be necessary before phase 2 is initiated. Specifically, water supply approval has been sought for phase 1 at this time, and the provision and approvals for adequate water supply will be a prerequisite of phase 2. Similarly, confirmation of sanitary capacity will be required. Once the water and sanitary systems are operational in support of phase 1, a monitoring program will be implemented to ensure site-specific data will be available before phase 2 servicing capacities and resulting densities are determined. Further, the extent of development in phase 2 will also be driven by market demand.

The Owner is therefore open to, and is prepared to enter into a mutually agreeable restrictive covenant, or other mechanisms, prohibiting any phase 2 construction until the following pre-requisites have been met: •

Completion of the first 50 cottages and the amenity building;

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Confirmation and provision for adequate water supply for additional cottages; and

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Confirmation and provision for adequate sanitary capacity for additional cottages.

The phases described above are the principal phases of development for the purpose of servicing, and it is anticipated there will be smaller sub-phases of development in phase 2 based on absorption of the cottages and servicing capacity.

Though the project is proposed in phases, and the extent of the phase 2 development has yet to be determined, the applications for OCP and LUB amendment include the entire project, with pre-requisites established in zoning and/or by covenant for phase 2. This approach transparently acknowledges the Owner’s intent to develop the property over time, subject to all necessary considerations.

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5.2

The Strata-Title Ownership Model

The existing 50 cottages are already strata-titled and can therefore be sold as individual units. The intent is to offer all cottages for sale to individual owners who would have the option to include their cottages in a professionally managed rental pool for use as guest accommodation by the travelling public. The cottage owners would enjoy the ability to occupy their cottages as secondary home vacation cottages; however the cottages would not be permitted as a primary or principal residence.

The Owner is prepared to include the primary residence restriction in the zoning.

This form of ownership is significantly different than the quarter-share concept proposed by the previous owner, and it does not constitute a time-share under the Real Estate and Development Marketing Act. Further, there are benefits to this ownership model to both the proposed project and the broader community as outlined later in this application and in the attached Economic Impact Assessment (Appendix 1).

5.3

Amenity Contribution

The Owner proposes to build the +/-6,000 square foot multi-purpose building as a community amenity as part of the rezoning application. Though it is questionable whether restoring a pre-existing zoning framework for a largely constructed project that was downzoned by the Islands Trust should trigger amenity contributions, the Owner is nonetheless prepared to construct the building at its cost as an amenity contribution. With an estimated value exceeding $1 million, the amenity building will provide space for a wide range of uses, including for the broader Salt Spring Island community.

Intended to serve community, owners, and visitors, the following are examples of the potential roles the building may fulfill once constructed: •

A Community Gathering Place: the Owner proposes to make the main portions of the building available to the broader Salt Spring Island community as a meeting place, a showplace for arts and culture, and a gathering place and recreation facility for occupiers of the site.

•

A Learning Place: Community engagement to date identifies a desire to have a facility capable of hosting courses, local art classes, professional and corporate retreats, small conferences, and other events. These will provide a learning opportunity for Island residents as well as a draw for visitors throughout the year for Salt Spring Island and to populate the cottages.

•

A Celebration Place: The Owner also envisions the facility will be ideally suited for weddings, anniversaries, and other private events for Island

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residents, owners, and visitors. Again, the intent is to draw visitors to the Island throughout the year and populate the cottages.

The Owner expects that the range of uses accommodated in the facility will be refined and clarified through the OCP and LUB amendment community consultation process.

The amenity building will also contain accessory office space, food service facilities, and potentially a caretaker’s suite. It will also be built using innovative green building techniques such as a “purple pipe� system to reuse grey-water, as well as a natural approach to landscaping.

The strata corporation will privately own and they or their designate will operate the amenity building. The building will be made available to segments of the broader community, such as non-profit and charitable organizations for community events, and the mechanism to ensure community access will be determined through the land use process.

5.4

Vehicular Access

The subject property is accessed from a main entry on Robinson Road.

There is a secondary access south of the main access that will be gated, but maintained as an emergency access to the property.

Figure 13: Road Network

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There is an undeveloped road allowance immediately north of the subject property providing public road access to Bullock Lake, but there is no intention or need to develop it as part of this project.

5.5

Pedestrian Circulation

5.6

Water Access

There are a number of pedestrian circulation options on the property including pedestrian pathways, stairs, and the strata roads that will provide access through the property for occupiers. Public access to Bullock Lake is not anticipated as part of this application out of respect for the natural integrity of the lake, and in recognition of the public road right of way northerly adjacent to the property. This right of way could be developed in the future should the Islands Trust wish to provide developed public access to the lake. The Salt Spring Island Parks System Master Plan identifies this alignment and two other potential public points of access on the west side of Bullock Lake, however it does not contemplate the construction of any public access to the lake.

Though the project fronts Bullock Lake, it is not intended to significantly alter the current character of the lake. Presently there is one dock, and one or two additional docks may be contemplated as part of future phases, however the relationship between the project and the lake is intended to be passive, respecting the natural integrity of the shoreline as opposed to an active developed waterfront.

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Detailed Application

These OCP and LUB amendment applications are to effectively restore appropriate OCP designations and zoning provisions to permit the construction and use of the property as described in the preceding section.

The current OCP and LUB regulations differ from the previous regulations that permitted the construction of the cottages at Bullock Lake. Subsequent to the downzoning to rural use, both the OCP and LUB have been comprehensively amended, effectively eliminating the ability to simply revert to the previous designation and zoning. Analysis of the contemporary OCP and LUB reveals that there are no existing OCP designations or LUB zones that would accommodate the project as proposed. This is because the existing built form and proposed use of the property are unique relative to any other developments on the Island, and there are not any direct comparables for the OCP and zoning designations.

Accordingly, a new OCP and zoning framework is proposed, the details of which are outlined below.

6.1

Official Community Plan Amendment

The current “Rural” OCP designation applied to existing development or the proposed land use, before consideration of an appropriate zone for does not currently contain a suitable land use unique project.

the property does not reflect the necessitating an OCP amendment the property. However, the OCP designation to accommodate this

The closest designation is likely the “non-village commercial”, but this does not account for the range of uses proposed, and particularly the mix of owner and commercial occupancies of privately owned recreational properties. Further, it would permit a number of uses not contemplated as part of the project, potentially complicating the consideration of future development potential as a broad commercial designation that contains uses not appropriate for this location.

6.1.1 Proposed OCP Amendment The proposed OCP amendment is to create a new set of policies tailored for the Bullock Lake Cottages project, similar to the approach taken for other significant land development projects on Salt Spring Island.

Specifically, the application is to create a “Bullock Lake Recreational Cottages” Official Community Plan policy framework that would include the following amendments:

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1. Creation of a “Bullock Lake Recreational Cottages” designation and definition based on the development existing and proposed for the property for inclusion in the OCP; 2. An amendment to Map 1 of the OCP to redesignate Strata Lots 1-51, and Lots 2-4 from the current Rural designation to the “Bullock Lake Recreational Cottages” designation; 3. The development of specific policy statements for the Local Trust Committee to consider in response to any future rezoning or development applications.

6.1.2 Draft OCP Amendment As a starting point for discussion of the OCP amendment, the following is submitted as a draft amendment to be added as appropriate to the OCP: Bullock Lake Recreational Cottage Designation OBJECTIVES To continue to provide for the development and occupancy of up to a maximum of 123 strata-titled recreational cottages and amenity building in a comprehensively planned and sustainably serviced recreational cottage accommodation development.

POLICIES 1. The area designated as the Bullock Lake Recreational Cottage Designation is shown on Map 1.

2. Zoning within the Bullock Lake Recreational Cottage Designation will allow up to 123 strata-titled cottage units in single-detached, duplex, triplex, and four-plex buildings, as well as an amenity building and other accessory uses.

3. Zoning amendments for recreational cottage uses should be generally consistent with the built form and development existing on site, or approved under previous zonings. Amendments should not consider increased development beyond 123 recreational cottage units, an amenity building, and other accessory uses.

4. Zoning regulations for the Bullock Lake Recreational Cottage Designation will require the provision of water and sanitary servicing before the construction of any cottage unit on Lots 2, 3, or 4, Plan VIP52850, and the Owner may be required to enter into a restrictive covenant prohibiting any cottage construction on these lots until servicing capacity can be proven.

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5. The Local Trust Committee should consider zones that ensure the longterm sustainability of projects in the Bullock Lake Recreational Cottage Designation through a flexible mix of owner occupancy and recreational accommodation units for the travelling public.

6. The Local Trust Committee should consider zones that allow for use of lands in the Bullock Lake Recreational Cottage Designation as recreational cottages, as opposed to permanent homes, and accordingly, the Local Trust Committee should consider means to restrict occupancy to prevent the use of the cottages as primary dwellings.

6.1.3 OCP Amendment Rationale The OCP amendment approach outlined above ensures the OCP designation applied to the Bullock Lake Cottages project clearly captures the uniqueness of the project.

Rather than channeling the project into an existing designation that doesn’t specifically accommodate it, the Owner prefers an approach that is completely transparent and reflective of the long-term development intention for the property.

Further, the aforementioned OCP designation approach gives the Salt Spring Island community certainty about exactly what will be envisioned as a suitable use for the property in the future.

Creating an OCP designation around the existing development, and based on the proposed use outlined in this application, limits the range of possible uses that may be contemplated in the future. As such, the community will have added certainty the property will be used in a manner consistent with the proposal described in this application. This will enhance and focus the public discussion on the proposed development rather than a potentially unsuitable range of uses.

6.2

Land Use Bylaw Amendment (Rezoning)

The LUB contains a number of commercial guest accommodation uses to permit a range of conventional accommodation options for the travelling public. After review of the range of Commercial Accommodation zones, it is apparent the range of uses, scale, size, and ownership structure of the Bullock Lake Cottages project does not fit within any of the existing zones outlined in the LUB. Accordingly, zoning amendments beyond simply the rezoning of the land from one zone to another is proposed.

Given the type of amendment required to accommodate the project as it has been substantially built and will be used in the future, the “zoning variation” approach commonly used in the LUB is not the Owner’s preferred method of amendment.

Development of a new zone, whether a Comprehensive Development zone, or a new commercial zone, is the preferred approach to clearly reflect the existing and proposed built form and range of intended uses. Again, the Owner’s intent is to 31

ensure the most focused public process possible through site-specific regulation of the proposed project.

6.2.1 Proposed Land Use Bylaw Amendment The proposed bylaw amendment creates a new zoning framework in the LUB to accommodate the Bullock Lake Cottages project. The Islands Trust can determine whether a Comprehensive Development Zone or new general commercial or commercial accommodation zone is most suitable; however, regardless of the approach, the fundamental elements of the new zone should include the following: 1. New definitions of “recreational cottage” and “recreational cottage accommodation” or similarly named buildings and uses that permits the construction and use of cottages as non-residential cottage units for occupancy by owners, as well as managed accommodation units for the travelling public; 2. Inclusion of permitted use provisions to accommodate the amenity building, including accessory office space and a caretaker’s suite; 3. Size, siting, and setback criteria that reflects the built form on the property and location of the foundations to accommodate future phases.

6.2.2 Draft Land Use Bylaw Zoning Amendment The following are draft zoning bylaw provisions as a starting point for discussion of the proposed Land Use Bylaw amendment.

Definitions: “recreational cottage accom m odation” means a commercial enterprise, other than a bed & breakfast home based business that consists of individually-owned recreational cottages that may be occupied by owners or paying vacationers, but not as a permanent domicile. “recreational cottage” means a structure not exceeding 204.4 square metres (2,200 square feet) in floor area which, despite the definitions of “dwelling unit” and “residential” in this Bylaw, is occupied or intended to be occupied by a person or persons having a permanent domicile elsewhere and using the cottage primarily in conjunction with recreation, or as temporary guest accommodation for vacation purposes.

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RECREATIONAL COTTAGES 1. Unless otherwise specified, no recreational cottage may be constructed or occupied on a lot other than a lot zoned recreational cottage accommodation.

2. A recreational cottage may be either physically detached from any other building or structure, or may be attached in duplex, tri-plex, or four-plex form.

3. A recreational cottage may only be used for occupation by a person or persons having a permanent residence elsewhere and using the cottage for recreational or vacation purposes.

4. A recreational cottage may be strata-titled and included in a managed rental pool for temporary occupation by a person or persons having a permanent residence elsewhere and using the cottage for recreational or vacation purposes.

The size, siting and other considerations will be included in the zone based on the detailed site plan.

Zoning M ap The Zoning Map will be amended to rezone Strata Lots 1-51, and Lots 2-4 from Rural to Recreational Cottage Accommodation.

6.2.3 Land Use Bylaw Amendment Rationale Similar to the OCP rationale outlined above, the intent is to ensure the zoning clearly reflects the built form and intended use outlined in this application. The intent is to eliminate any confusion or uncertainty in the community about what will be permitted following completion of the zoning.

Whether accomplished by way of a comprehensive development zone, or by way of a new commercial zone designed specifically for this proposal, the intent is to provide a project specific set of zoning regulations to achieve the proposal contained in this application.

It also enables the rezoning to consider the mix of uses proposed on the property including the multi-purpose amenity building and ownership structure.

This is seen as a preferred alternative to creating a series of fundamental variations to an existing zone that may contain a broader range of uses than contemplated under the current project proposal.

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7

Application Support

7.1

Supporting Official Community Plan Policy Objectives

In a broad sense, the vision and objectives of the Salt Spring Island OCP are oriented towards preserving and protecting the natural environment and systems of the Island.

Numerable references are made in Part A of the OCP to these preservation principles and the expression of those objectives in a policy structure that attempts to minimize additional disruption of the natural environment without due consideration.

What is unique about the subject application is that the disruption to the natural environment has already occurred to a large extent as the project is substantially built.

The impacts on the natural environment arising from the project have already occurred, and will be only nominally increased by completion and occupancy of the project. When balanced with the economic development and tourism objectives similarly contained in the OCP, the Bullock Lake Cottages project represents an opportunity to gain significant economic and cultural benefit with minimal additional environmental disruption.

The OCP contains objectives that support consideration of an amendment for the Bullock Lake Cottages project as one that will draw economic development and fourseason tourism to Salt Spring Island. As a project unique to the Island in terms of its form, its destination potential with the amenity building, its proposed uses, and its potential economic impact on Salt Spring Island, it is supported by the commercial objectives of the OCP as outlined in this section.

7.1.1 Analysis of Supporting OCP Objectives.

This section summarizes the supportive OCP objectives and provides examples of how this application and the Bullock Lake Cottages project furthers these objectives: Objective B.3.1.1.1: To recognize and welcome the economic value to our community of tourism that is compatible with preserving and protecting the Island's natural environment, authentic resident-based sense of community, and the aesthetic values that attract visitors. •

As outlined in the accompanying Economic Impact Assessment, the project will generate significant tourism based economic development for Salt Spring Island. It will contribute spending associated with construction, and annual, sustainable economic output, including direct employment.

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•

The project’s unique blend of owner and visitor occupancy also furthers this objective in that the proposed ownership model typically includes a different level of social and economic investment in the community. As such, cottage owners will share a different level of attachment to the community and its ethos around sense of community, authenticity, and the natural environment than customary for conventional tourism accommodation developments. They will make a significant economic investment to become part of Salt Spring Island.

Objective B.3.1.1.2 To allow visitor accommodation to develop in a way that will best retain and distribute the resulting economic benefits and reduce any negative impacts; to avoid concentrating benefits and impacts in only a few locations.

•

The proposed Bullock Lake Cottages project will benefit a number of business sectors on the Island, disbursing the benefits as outlined in the accompanying Economic Impact Study. The direct and indirect benefits, will filter across the Island, benefiting service sectors such as restaurants and pubs, tourism operators, and health and wellness providers, as well as other indirect sectors such as agriculture and vineyards.

•

The amenity facility has the potential for education and other economic development that will spread the economic impact throughout the community and beyond. It will provide a facility for artisans, performers and others to host events, courses, and gatherings for economic gain and cultural expression.

•

Further, the first phase of the project is largely built, and the second phase has already generated impacts on the landscape, thereby making completion of the Bullock Lake Cottages a more sustainable alternative to entirely new, or greenfield, commercial accommodation developments to provide future tourism benefit.

Objective B.3.1.1.3 To retain and maximize the economic benefits of tourism to the community.

•

Bullock Lake Cottages represents a sector of the tourism market that is currently underserved. The mix of larger accommodation cottages and the draw established by the amenity building creates maximum economic benefit for the community.

•

In combination, the cottage types and amenity building will create a destination draw for visitors and events that currently do not come to Salt Spring Island. This includes academic and arts based courses, professional

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development sessions, and corporate retreats. It will generate additional capacity for community and social events, such as weddings, which will benefit from the facility and the scale of the accommodation component.

Objective B.3.1.1.4 To make land use decisions that would encourage tourism in the shoulder and offseasons and discourage any significant increase in the peak period.

•

Unlike conventional tourism accommodation offerings, Bullock Lake Cottages will draw visitors throughout the year. As identified in the attached Economic Impact Study, the experience with other comparable properties is that cottage owners will tend to occupy their units outside of peak periods, as they have made significant investment in the property, and the community.

•

The amenity building has the potential to draw visitors to the building and the cottages by offering art havens, healing retreats, courses, and other destination activities that tend to occur outside of peak tourist seasons. By creating a destination and having the ability to host events on site, there is a tendency to smooth the peak periods, as most of these types of events are hosted outside of peak periods.

Objective B.3.1.1.5 To encourage tourism that blends well with the community and complements the rural, peaceful nature of the Island, and to avoid the development of tourist attractions that are unrelated to the Island’s natural environment, social base or cultural heritage.

•

The ownership model complements the peaceful nature of the Island in that owners will tend to engage in the community in a manner similar to the other property owners. This level of investment in the socio-cultural parts of the community is distinct from conventional commercial guest accommodation uses catering only to the traveling public.

•

Additionally, the project is substantially built. The Owner envisions it will be a place for refuge that celebrates the rural and natural setting. That is reflected in the desire to maintain the lakefront as a naturalized area.

•

The “attraction” component of the project is the amenity building which is intended to celebrate, share, and express the Island’s social and cultural heritage in an authentic manner.

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Objective B.3.1.1.6 To provide for facilities necessary to mitigate the impacts of tourism on the Island's natural or social environment. Examples are: sani-dump facilities for boats or recreational vehicles, and tour bus parking areas outside Ganges Village Core.

•

The Bullock Lake Cottages project is self-sustaining in that it will provide its own water supply and treatment, and sanitary collection and disposal systems.

•

As a relatively isolated site, virtually invisible from the public roadways and outside of significantly developed areas, the cottages will introduce significant economic and cultural benefit with minimal new impacts on the broader community.

7.2

Islands Trust Policy Statement

As all OCP amendments are referred to the Islands Trust for consideration against the Islands Trust Policy Statement, the following demonstrates the application’s consistency with the economic development and tourism objectives and directives of the Policy Statement.

The high level-policy directives of the Islands Trust are the basis for the OCP’s overarching direction to preserve and protect the natural environment; however it also similarly acknowledges the need to balance the preservation mandate with community sustainability, including appropriate economic development activity.

Specifically, Part V establishes the goal “To sustain Island character and healthy communities”. It further defines “economic security” as one of the factors of community health.

The sole policy statements about economic development and tourism are summarized in section 5.7 Economic Opportunities, which reads as follows: Com m itm ent of Trust Council 5.7.1

Trust Council holds that economic opportunities should be compatible with the conservation of resources and protection of community character.

Directive Policy 5.7.2

Local trust committees and Island municipalities shall, in the official community plans and regulatory bylaws, address economic opportunities that are compatible with conservation of resources and protection of community character.

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As outlined in the preceding OCP analysis, the Bullock Lake Cottages project meets this test in that it is already substantially built, thereby minimizing the impact on the environment and natural resources. It will be self-sustaining in terms of servicing, and will reflect, if not enhance the character of the community through the ownership model and amenity building. For these reasons, the project is consistent with the cited sections of the Policy Statement.

7.3

Supporting Studies and Strategies

Over the last decade several studies have been undertaken towards defining a tourism and economic development strategy for Salt Spring Island and the southern Gulf Islands. Many of these efforts involved community stakeholders in creating some unifying vision for the future of tourism on Salt Spring Island.

Additionally, the Owner has commissioned independent professional consultants to quantify the economic impacts of the Bullock Lake Cottages project. These studies are briefly summarized below.

7.3.1 Economic Impact Study In support of the application, and to demonstrate the economic benefits of the project, the Owner commissioned Grant Thornton to undertake an economic impact assessment of the project. The Grant Thornton report is attached as Appendix 1 for reference.

The Economic Impact Study shows that the completion and occupancy of the Bullock Lake Cottages project, as originally proposed with 123 cottages, would have a significant economic impact on Salt Spring Island as summarized below: •

Construction Impacts: employment;

$38,000,000 over 10 years and 259 person years of

•

Operating Impacts: spending; and

•

Owner Expenditures: $660,000 annually spent by unit owners alone.

$7,500,000 annually in direct, indirect, and induced

Though the extent of phase 2 development has yet to be determined, phase 1 development alone will generate $5,000,000 in construction output, and an annual operating impact of $3,500,000, including $397,000 in owner expenditures.

These significant economic impacts support the aforementioned OCP objectives in that the project generates demonstrable economic development and tourism spending that will benefit a number of Salt Spring Islanders. The Study also outlines a

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number of sectors that will benefit from these increases in investment and expenditure on Island.

The Study also demonstrates advantages to the strata ownership model, including: •

Owners will tend to occupy their cottages outside of peak season; and

•

Owners will have a more vested interest in the land and the culture than conventional commercial accommodation because of the level of investment they would make.

The Grant Thornton Study concludes these impacts will make significant contributions to the community and will generate employment for Island residents. It further concludes these benefits further the economic development objectives of the OCP and the Tourism Development Strategies.

7.3.2 Tourism Strategies Recent tourism development studies and plans have been completed to unify a vision for tourism development on Salt Spring Island and the Southern Gulf Islands. These studies have the consistent underlying theme that tourism development is an important economic and cultural component of a sustainable Salt Spring Island.

The Grant Thornton Economic Impact Study attached as Appendix 1, indicates that the Capital Regional District, and by all indications, Salt Spring Island, has experienced tourism trends generally consistent with the rest of British Columbia. Tourism has been in general decline since 2008, however recent indicators are beginning to show an upward trend in spending and visitation. Though tourism has experienced a soft period over the last few years, it is still a significant economic driver for the province and for coastal regions in particular. As an order of magnitude comparison, room revenues in the Capital Regional District generated over $162,000,000 in 2012.

The significant economic development benefits of tourism have enticed Salt Spring Island to look at several different approaches to tourism and economic development, with the most recent being the Salt Spring Island Tourism Development Plan 20102013 (TDP).

The TDP prepared by the Community Tourism Foundations Program outlines a comprehensive strategy for tourism development, including strategies to promote economic development and to promote Salt Spring Island culture through promotion and celebration of “Local Distinctiveness”. This is to be achieved by creating niche tourism opportunities based on “Arts and Culture”, “Ecotourism and Sustainability Education”, and “Supportive Experiences” such as outdoor recreation, health and wellness and festivals.

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The Bullock Lake Cottages project supports these tourism strategies. The cottages will provide a recreational property option for owners who will become part of and enhance the Salt Spring Island community. The Amenity building will provide a unique venue for courses, art shows, cultural events, and other uses consistent with the ethos and culture of Salt Spring Island. Overall, the Bullock Lake Cottages project enhances the community-developed vision expressed in the Tourism Development Plan, which is expressed as follows: To deliver a unique visitor experience that embraces the authenticity of the community, celebrates its local distinctiveness, and contributes to the overall sustainability of Salt Spring Island.

This objective has informed the approach taken towards the development of the lands, and the Owner is committed to continuing the dialogue with the community about how this can be best achieved, within the confines of the existing development.

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8

Technical Services and Studies Summary

In support of the application, technical studies have been undertaken to address the on-site technical and servicing matters. These studies are included in the appendices to this application. Studies have also been submitted to external regulators in support of permit applications described in this section. There are a number of regulatory agencies involved in the servicing of the property, particularly for water supply and sanitary discharge.

The following section also illustrates compliance with the servicing objectives of the OCP for servicing new development. It complies with the general objectives in that servicing is being comprehensively planned with the appropriate responsible agencies.

Further the servicing strategy is to provide the necessary services from sustainable onsite systems. This will ensure that there is no additional burden placed on the community at large for the capital or operating costs for servicing the project.

8.1

Transportation

Access is provided by the existing road network, which is a “Minor Rural� road in the OCP. Robinson Road links with Upper Ganges Road to provide efficient access to Ganges.

The property is located approximately 2.8 km from Ganges and accordingly provides ready access to commercial amenities to support the cottages. This proximity also makes alternate modes of transportation available, consistent with OCP objective C.2.1.1.1. Further, the project layout preserves the rural character of the road, in support of OCP objectives C.2.2.1.2, and C.2.2.1.3.

The roads to service the individual cottages will be Strata roads, owned and maintained by the Strata, thereby limiting any additional burden on the community resulting from new road construction.

8.2

Water Supply

The Owner understands the importance of water supply on Salt Spring Island.

Accordingly, the water supply and treatment system has been comprehensively reviewed in support of this application, to an extent much greater than required by the external approval agencies for permitting. As the water system is already constructed, the application is in a unique position to have significantly more water information available than would customarily be available at the time of an OCP or

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rezoning application. The Owner is also committed to reduce and conserve water usage by way of a water management program to meet or exceed the objectives of the OCP. The OCP establishes the following general objectives for water supply: C.3.1.1.1 To apply the precautionary principle in ensuring that the density and intensity of land use is not increased in areas which are known to have concerns with the supply of potable water.

C.3.1.1.2 To acknowledge that surface water supply sources on the Island are finite and remain under Provincial control and that more effective use, management and sharing of this resource should be encouraged to support present commitments and future desired land use decisions.

Specific to private water supplies, the OCP further establishes the following objectives: C.3.3.1.1 To avoid zoning changes that result in the depletion of existing wells or springs or water bodies used as water supplies.

C.3.3.1.2 To preserve known groundwater recharge areas.

As outlined below, the approach taken in this application satisfies these objectives in that the Owner has undertaken detailed water supply testing to ensure the level of development does not exceed the capacity of the water supply to service it. This applies to both phase 1 and 2.

The proposed water system outlined below also exceeds the treatment standards for groundwater as regulated by Health Canada and the Province, and therefore will satisfy all water quality considerations and objectives described in Part A of the OCP once operational.

8.2.1 Water System Description Technical descriptions of the system and supply are in Appendix 2 which consists of the Technical Memorandum: Development Water Demands and Sustainable Yield in Appendix 2A, and the Hydrogeological Impact Assessment: Bullock Lake Cottages in Appendix 2B, however the following is a brief description of the four main components of the system: The water system constructed on the property includes a complete and self-contained source, treatment, storage, and distribution infrastructure, consisting of the following components:

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1. Wells: There are presently five wells on the property, two of which will be the production wells for the project, and the remaining three wells that are not required will be decommissioned.

2. Treatment Plant: An enclosed water treatment plant has been constructed on the property and is capable of treating ground-water to a high quality. The plant houses the following treatment infrastructure: • • • •

2 pressure vessels with ion exchange resin to remove manganese and iron; 2 ultra-violet reactors to inactivate protozoa (such as Giardia); A sodium hypochlorite injection system; and A dedicated line from the chlorine injection point to the reservoir.

3. Storage. Treated water is stored in a 332 cubic metre (+/- 88,000 gallon) above ground steel reservoir.

4. Distribution: Water is distributed from the reservoir through a series of mains and individual connections to each cottage, and fire hydrants located throughout the property.

Figure 14: Water Reservoir

Figure 15: Water Treatment System

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8.2.2 Water System Permitting The water treatment and distribution system requires the approval of the Vancouver Island Health Authority (VIHA). In June 2012 the Owner made a new application to VIHA for final approval for a water source sufficient for the existing 50 cottages and amenity building contemplated in phase 1. The new application provided updated information and responded to VIHA’s information requirements. VIHA has since granted water source approval.

Final operating approval from VIHA will be required before commissioning of the system and occupancy of the cottages. In the context of the OCP and rezoning applications, it is somewhat unusual to have the system fully constructed and nearing final permitting at the time the land use is being considered. However this unique situation will enable a more deliberative and informed approach to addressing concerns about water provision for the project.

As discussed earlier, the water studies and approvals are for phase 1 only. Additional water confirmation to the satisfaction of all approval authorities will be required before any development occurs on the phase 2 lands. The Owner is prepared to commit to that approach through zoning restrictions and/or restrictive covenants.

8.2.3 Water Capacity and Supply Studies Since purchasing the property, the Owner has been made very aware of the concerns of officials and residents alike about the ability to provide an adequate supply of water without significant impacts on neighbouring properties. To that end, the Owner has proactively implemented an extensive pump-test and monitoring program for the six months leading up to the application to gain a clear understanding of the performance of the wells, aquifer, any connectivity to Bullock Lake and hydrogeology of the area.

Comprehensive on-site well and aquifer testing and monitoring of an off-site well was performed between October 2012 and March 2013 and confirms a sustainable water supply (See Appendices 2A and 2B). Specifically, there is sufficient water supply in the aquifer to meet the water demands of the project without impacting neighbouring wells or Bullock Lake. Peak periods in the summer months may require some additional storage capacity over what currently exists, the details of which will be finalized at the design stage.

It is noteworthy that the pump testing between October 2012 and March 2013 did not result in any drawdowns in Bullock Lake. This is consistent with the available local hydrogeological information, which suggests the production wells and Bullock Lake are not hydraulically connected. Additionally, the pump testing helped to determine

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sustainable pumping rates for the production wells that should not interfere with the water supply at neighbouring wells.

Further, the Owner is committed to prepare and implement a Water Supply Management Plan, which will include monitoring of the water system through the early occupancy of the project. This will enable further refinement of the water supply solutions based on the actual performance of the project.

8.3

Sanitary Sewer Treatment

Similar to the water system, a complete wastewater collection, treatment, and disposal system already exists on the property and is described below, and detailed in Appendix 3. The sanitary system is also being provided in a manner that meets the waste management objectives of the OCP, and the Owner commits to working towards means to reduce, divert, reuse, and recycle domestic waste as practicable.

The OCP policies specific to liquid waste management are as follows: C.4.2.1.1 To accommodate facilities and services necessary to ensure the Island’s liquid waste, whether from residential or business on-site, community or private sewer system, is collected and treated on Island, while minimizing the impact of the facilities or services on neighbourhoods, community health and the environment.

C.4.2.1.2 To ensure that zoning changes within the boundaries of any community sewer area do not result in such a level of development that sewer collection, treatment or disposal capacity of the area is or will be exceeded when the area is fully developed.

C.4.2.1.3 To encourage the operators of liquid waste systems to consider and implement strategies which support beneficial reuse of waste energy and waste products, including creating and making available reclaimed water from wastewater treatment facilities and compost from sewage and septage sludge.

There is also one specific policy for new development and rezoning applications outside of areas serviced by community sewer systems, which states the following: C.4.2.3.1 When the Local Trust Committee receives rezoning applications for land without community sewer service, it should ask for evidence that the expected amount of sewage can be treated on site and effluent disposed of on-site without it reaching the surface of the land, discharging into a body of water, or contaminating a supply of potable water.

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As a high quality on-site treatment system, the existing sewage treatment infrastructure satisfies these objectives. Further, the Owner is prepared to explore additional means to reduce and reuse septic discharge. To that end, the Owner intends to use a “purple pipe” system for all new construction on the property. This will see discharge from the treatment plant reused for non-potable purposes in all new buildings.

The following section describes the existing sanitary sewage system, and the work currently being undertaken to confirm its capacity to service the project.

8.3.1 Sanitary System Description The sanitary system consists of existing collection, treatment and discharge systems that were purpose built for the proposed project. The system has been largely constructed, but has not operated yet. Technical descriptions of the system are in Appendix 3 Technical Memorandum: Wastewater System Assessment, however the following is a brief description of the four main components of the system: 1. Collection: Each cottage and the amenity building drain into collection mains that gravity flow to two septic tanks and two pump stations that manage the flow of septic tank effluent and pump it to the wastewater treatment plant.

2. Treatment: The wastewater treatment plant consists of an Upflow Sludge Blanket Filtration (USBF) treatment plant with anoxic, aeration, and sludge holding tanks. An ultraviolet system is included which provides disinfection of the effluent after passing through sand filters and before being pumped to the disposal field. The system provides advanced secondary treatment, resulting in effluent similar to Class ‘A’ municipal wastewater effluent.

3. Effluent Disposal Field: The treated effluent is pumped into a disposal field located on the property. The disposal field is a series of perforated pipes that allow the treated water to filter back into the ground.

4. Purple Pipe System: For new buildings constructed on property, the Owner intends to incorporate a “purple pipe” system, where discharge is diverted from the septic field and used in toilets and for other non-potable purposes in the new buildings. This is possible because of the high quality of the effluent leaving the treatment plant.

8.3.2 Sanitary Regulatory Agency Permitting The wastewater treatment systems previously received a Discharge Permit (PE-12875) from the Ministry of Environment for all 123 cottages and a much larger amenity building than currently contemplated in the application. The Ministry has since

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amended the permit to reflect the new Owner, and accordingly, the permit remains in good standing.

Confirmation that permit conditions have been addressed will be obtained and provided to the Ministry of Environment prior to occupancy. Again, it is unique that this level of infrastructure exists in the context of an OCP and LUB amendment application.

Figure 16: Wastewater Treatment Plant Building

Figure 17: Wastewater Treatment Plant

8.3.3 Sanitary Demand and Flows Reviews and analysis conducted by qualified engineers indicate that phase 1 of the project will generate substantially less effluent flow than permitted in the Permit to Discharge issued by the Ministry of Environment. As discussed previously, additional study will be a pre-requisite to any further development in phase 2. Detailed information is contained in Appendix 3.

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Earlier studies also conclude that given the projected discharge rate, and the quality of the treatment plant, the amount of nitrogen and phosphorous discharged by the system will result in immeasurable increases of these compounds in Bullock Lake.

8.4

Water and Sanitary System Ownership and Operation

The Strata Corporation will privately own the water and sanitary systems, and will be responsible for the lifecycle maintenance of the systems. Additionally, the Owner will be required to submit a maintenance bond as a condition of the sanitary permitting.

Both systems will also be managed and operated by qualified operators retained by the Strata Corporation. The permits will also require sampling and monitoring programs to ensure the systems are operating properly.

8.5

Stormwater Management

The stormwater management system was designed and approved as part of the building permit process with the Capital Regional District. The system involves a series of open and closed collection systems that discharge to low-lying lands. The closed portions further contain a mix of solid and perforated pipe which have been recently studied and verified to largely be in proper working condition. Given the sloping topography of the property, there is also overland flow over unpaved portions that collect in ditches and/or naturally infiltrates through the soil.

Additional stormwater management considerations will be dealt with through the building permit process, as needed.

8.6

Solid Waste Management

The project will participate to all practical extents to further the solid waste management objectives of Salt Spring Island, which are expressed in the following OCP objectives: C.4.3.1.1 To protect the Island's environment from contamination by solid waste.

To accommodate the facilities and services necessary to provide solid waste collection, receiving, sorting, reduction, reuse, recycling, marketing and /or transport of waste for disposal to the Regional Solid Waste Landfill.

C.4.3.1.2 To support the reduction, recycling and reuse of solid waste materials.

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Solid waste is a regional issue that is beyond the direct control of the Owner or this project. However, the project will strive to contribute to the sustainable management of solid waste.

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9

Application Process and Consultation

The Owner is aware of the challenges that have plagued the subject property in the past under the previous owner, and has committed to undergoing an application process and community consultation to ensure the project will continue with appropriate land use in place, following an informed community dialogue. The Owner has elected this approach over completing the project under the legal non-conforming status.

The purpose of undertaking the consultation approach is to ensure the project maximizes on the community objectives outlined in the Official Community Plan (OCP), while recognizing it already exists. Consulting the community on the amenity building, and how it, and the remainder of the project, can enhance the “sense of community” and “economic security” of the Island is critical to making the project authentic to the Island and its people.

The Owner is designing a community consultation program that will be implemented during the application process. It is intended to generate an appropriate level of consultation for the project, while respecting that it has been substantially constructed and the use has been previously committed to by earlier approvals and construction.

9.1

Community Consultation

The Owner acknowledges the importance of community engagement and public consultation in the consideration of development applications on Salt Spring Island.

This consideration is clearly established in Part A of the OCP. Since acquiring the property almost 2 years before submitting this application, the Owner has spent considerable time on Salt Spring Island to gain an understanding and appreciation for the Island and its residents. The intent is to ensure the application addresses issues such as water supply and servicing, while capitalizing on the economic development and tourism opportunities, both in a manner that is authentic to Salt Spring Island and reflects the community as a whole.

Further, there is a poor history associated with the community engagement about the subject property and the former owner. Much of that was fueled by a lack of open process and access to information. The Owner has committed to a transparent application process, with appropriate community consultation, to ensure the community dialogue about the application is based on the best available information and study.

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9.1.1 Consultation Efforts To Date To date the Owner and its representatives have met with numerous individuals and stakeholder groups about the future of the property and the questions the application is likely to encounter technically and in the public forum.

These meetings and site tours have enabled the Owner to explore a range of options for the property, within the confines of the current built form. Further, it has enabled a rich discussion about the potential of the amenity building to meet community needs and desires.

9.1.2 Proposed Consultation Program A comprehensive community consultation process involving official open houses, and tours of the property for neighbours and the general public will follow the application submission. The project team will also consider workshops and other meetings with stakeholder and interest groups throughout the course of the application. The purpose of the consultation is to articulate the proposal clearly for the public and for them to learn about the project. This will facilitate an informed and enriched community dialogue about the property, the proposed project, and the opportunities for the Island arising from the project. The amenity building, and how the project can enrich the social and economic aspirations of the Island are the anticipated targets for community engagement.

The reality that the project has already been largely built in the form of the proposed project presents a unique consultation scenario. The public will be invited to visit the property and see much of the actual built project contained in the application, giving a unique opportunity to understand the proposal. This is quite unusual in the context of an OCP and rezoning application. The challenge however, will be to engage the community in meaningful discussions about integrating the project into the community, while there are limited opportunities for it to be substantially modified because it is built. Regardless, the Owner considers the community dialogue and input to be an important part of the application process and the best means to ensure the project maximizes benefits to the community.

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10

Sustainability Statement

Community sustainability is generally regarded as seeking a balance between the potentially competing demands on natural systems, economies, and social structures.

Though the Gulf Islands, and the entire Islands Trust area, is unique in terms of its natural ecosystems, it is not set aside exclusively for preservation of nature. Salt Spring Island, like the rest of the Islands Trust area, is also a community. That necessitates consideration of the economic and social considerations of sustainable community development in addition to natural preservation as the only consideration.

It is clear that despite the overarching desire to preserve and protect the natural environment, the OCP acknowledges the importance of economic and social considerations to achieve a sustainable Salt Spring Island.

As demonstrated throughout this application, the project is designed and submitted to address the economic and social aspects of sustainability, while minimizing impacts on the natural environment. Since the project is already mostly built, and the environmental impacts have already occurred, the application intends to utilize the existing built form to maximize social and economic benefit for Salt Spring Island.

10.1

Environmental Sustainability

The application is seeking to reinstate approvals for a project that has already been substantially built, and has already generated most of the impact on the natural environment. Completing the project will ensure that the environmental impacts generated are not lost without social, cultural, and economical benefit. It will further enable the use and reuse of the materials and energy expended through initial construction.

As for other features of development, the phase 1 cottages contain low flow toilets, do not have dishwashers, which is an environmental benefit in the context of water supply, and would have been quite innovative at the time of initial construction.

Water restrictions for irrigation are anticipated as part of the strata regulations and the possibility of rainwater recapture is being explored. Though there is limited opportunity to include green building features of the previously constructed cottages, the Owner will explore a range of green building components for any new construction of the amenity building or phase 2 cottages to reduce energy, water, and material consumption. As described earlier, the Owner anticipates reclaiming and recycling discharge from the sanitary treatment plant through a “purple pipe� system for non-potable use in new buildings. All new construction will have low-flow fixtures, and all cottages will have high-efficiency washers and dryers.

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Detailed testing and monitoring processes are in place to manage the use of water to ensure adequate supply and superior quality. Innovative water conservation features will be considered for all new construction. For example, new construction will also consider xeriscaping or native plantings in all future landscaping to minimize the use of water resources for irrigation.

10.2

Economic Sustainability

As outlined in the Economic Impact Assessment submitted in Appendix 1 as part of this application, completion and occupancy of the project will have a demonstrable economic benefit to the local economy. It will generate long term sustainable jobs directly through both construction and operation, and will generate spin-off economic benefits for a number of other sectors on Salt Spring Island, thereby fueling additional job creation and economic sustainability.

Through the consultation undertaken to date, there is a recurring concern about employment opportunities on the Island, as recent years have not seen any meaningful job growth.

There is a significant level of unemployment, and underemployment in the community. The OCP acknowledges the importance of employment and “economic security� in respect of community health through policies such as A.4.6.3 which reads as follows: A.4.6.3 To encourage living-wage, meaningful, year-round employment and income generating opportunities that especially enable young people and families to remain on the Island.

A 2011 study entitled Improving the Employment Experience of Workers on Salt Spring Island, prepared by the Salt Spring Island Literacy Society identified a significant issue on Island with long term, sustainable, and family supporting jobs.

As described in the attached Economic Impact Study, phases 1 and 2 of the Bullock Lake Cottages project will generate $7.5 million in economic activity annually once it is fully operational. That figure includes the wages for 69 full time jobs created by the operation of the cottages. Phase 1 alone will generate $5,000,000 in construction output, and an annual operating impact of $3,500,000, including $397,000 in owner expenditures. A significant portion of this economic activity can be retained on Island, generating considerable economic growth.

The most impacted sector will be tourism, with the ability to provide an anchor for tourism on Salt Spring Island and provide a tourism offering different than anything on the Island. The destination draw potential of the amenity building, combined with the strata ownership model and accommodation offering will further generate off-peak season tourism, which is critical to a sustainable tourism industry.

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10.3

Socio-Cultural Sustainability

The project, as described in this application, is intended to align the ultimate use as closely as possible with the authentic culture of Salt Spring Island. Section A.4.4 of the OCP outlines several objectives highlighting the importance of the “Sense of Our Community” on Salt Spring Island. A critical consideration of sustainability, these objectives make reference to remaining authentic, resident centred, and cohesive. The objectives also identify the need for diversity, with a range of choices for housing and “choices of livelihood” to ensure social diversity.

The Bullock Lake Cottages project seeks to enhance these social sustainability objectives. It provides an option for property ownership and vacation accommodation that does not presently exist on Island. This model of property ownership creates a different level of stewardship than conventional tourist accommodation models that exist on Island. The level of investment made by the owners will see them contributing socially to the Salt Spring community. This combined with the amenity building, gives the Bullock Lake Cottages an opportunity to become a centrepoint for celebrating local culture though community use of the building, in addition to its potential to host events and courses that are authentic to the place.

One of the objectives of the public consultation process is intended to engage the community to refine the broadest mix of uses for the amenity building and help ensure it not only meets the needs of the community, but enhances the culture of Salt Spring Island.

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Summary and Contact Information

The Owner is excited at the prospect of completing the Bullock Lake Cottages project on Salt Spring Island. The project will bring positive social and economic benefit to the Island with minimal additional environmental impact. It will become a destination draw that will also capture the spirit and ethos of the Island in its tranquil setting.

The project will be enhanced by an effective public consultation strategy to engage the community in refining the social and economic benefits the project will bring, particularly through construction of the new amenity building.

The Owner looks forward to completing the OCP and LUB amendment process to realize these benefits for Salt Spring Island.

11.1

Project Contacts

Application Contact: Cameron Chalmers, MCIP, RPP Principal Cameron Chalmers Consulting Inc. cameron@cameronchalmers.com 604.849.2138

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Appendices

12.1 12.2

Appendix 1: Economic Impact Assessment Appendix 2: Technical Memorandum: Development Water Demands and Sustainable Well Yield Appendix 3: Technical Memorandum: Wastewater System Assessment

12.3

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