Denman Island Housing Project (Phase 2) – Engagement on Key Themes
The Denman Housing Review Project was initiated to respond to the growing need for diverse and affordable housing options on Denman Island. As we head closer toward drafting bylaws to support this need the Denman LTC is inviting the Denman Community to learn about and comment on key themes that have emerged through the process. Your input will help shape housing policies that reflect Denman’s values and needs.
The key themes are identified below. Each theme is linked to relevant information as well as policy options. The survey includes questions related to each theme.
Survey feedback will be collected until September 30th, 2025.
Cluster Housing
Community-Scaled
Living
Units
Sited
Together for
Ecological and Economic
Resilience
What is Cluster Housing?
Cluster housing allows several small homes—either attached or detached—to be grouped together on one lot without subdividing the land. This can reduce the overall development footprint, making more efficient use of space and infrastructure.
Are Cluster Homes Allowed on Denman?
Denman’s current Official Community Plan (OCP) supports rezoning for affordable, multi-unit housing. Including “cluster housing” in the OCP could make the process clearer and faster by eliminating the need for OCP amendments and providing specific guidelines.
Why Consider Cluster Housing?
- Housing & Environment: Denman’s housing needs and environmental protection are closely linked. More housing options, like shared land ownership, can reduce reliance on large single-unit lots.
- Land Sharing Tradition: Denman has a history of communal living, and community feedback supports policies that reflect this.
- Smaller Footprint: Clustering homes and infrastructure like wells and septic systems reduces environmental and archaeological impacts.
- Manageable Density: Cluster zoning can be used instead of subdivision to enable additional density while preserving rural character and facilitating the development of smaller more affordable housing units.
How Could Cluster Housing Be Introduced?
Option 1: Rezoning Applications
- Update OCP policies to allow “cluster housing”
- Include clear criteria: water, septic, site layout, total floor area, road access, and long-term affordability through housing agreements
Option 2: Pre-Zoning by LTC
- LTC could identify and zone specific lots for cluster housing
- Larger lots could be split-zoned to cluster housing on part of the property, based on suitability mapping (e.g., septic, driveways, heritage protection)
Key Considerations for Suitable Land for Cluster Housing
Cluster housing zoning:
- Can not be applied to ALR lands, areas protected by covenants, parkland
- Would avoid shorelines, sensitive archaeological and ecological areas, riparian areas, steep slope and freshwater recharge areas
- Mapping shows that when considering the factors above the location for potential cluster housing zoning is limited.
Cluster Housing Proposed Guidelines
Allow multiple small homes on one lot, limited by combined floor area. For example:
| Lot Size | Number of units | Maximum Combined floor area |
| < 0.6 ha (1.5 acres) | 3 | 2500ft2 |
| 0.6 ha (1.5 acres – 1.2 ha (3acres) | 5 | 3,500ft2 |
| 1.2 ha (3 acres) – 5 ha (12.35 acres) | 6 | 4,750 ft2 |
| 5ha (12.35 acres) – 10ha (24.70 acres) | 7 | 7000 ft2 |
| 10 ha + | 7 + 1 for every 5 acres protected by covenant | 7000 ft2 + 500 for each additional unit |
Want to Know if Your Property is Suitable for Cluster Housing?
- Contact Islands Trust staff for a site review.
What if Cluster Housing if Applied to My Lot and I Want More Units or Larger Homes?
- For more units, property owners can apply for site-specific rezoning with a housing agreement to allow for additional units.
- Proposals must cluster development in suitable areas and set aside undeveloped land (e.g., via covenant).
- For larger units property owners can apply for a development variance permit to alter the combined maximum floor area of the dwellings.
Density Bank
What is the Density Bank?
The Density Bank was established in 2008 in the Official Community Plan (OCP) to manage residential development by capping total densities and encouraging land conservation through the transfer of densities from protected lands into the bank.
In practice, however, it has proven challenging to use. Each application requires an amendment to the OCP, making the process slow and complex. The bank is also disconnected from broader planning efforts, lacks clear guidance on where density should go, and is poorly understood.
How the Density Bank is Structured:
- Baseline Densities (994 units): Based on legal dwellings and subdividable parcels as of October 2010 (826 zoned + 128 subdividable).
- Additional density is capped at 5% of total density in 2010 (49 units which were placed in density bank, only 7 units remain)
- Density can only be allocated to “special needs and affordable housing, secondary dwelling units (ADUs)” as identified in OCP Policy 12
- Conservation Additions: Densities from lands donated for conservation are added to the bank, ensuring no net increase in total development.
What permissions for the Density Bank currently exist for Denman Island?
The Density Bank, established in Appendix D of the Official Community Plan (OCP), currently holds 7 banked residential densities. These densities are managed through a rezoning bylaw amendment process, ensuring that growth aligns with community goals and regulatory oversight.
Densities can be added through the following mechanisms:
- Rezoning applications that remove subdivision potential, provided at least one dwelling remains on the lot
- Land donations to a conservation agency or through park dedication
- Local Trust Committee (LTC)-initiated zoning changes that result in unused residential densities
Banked densities may only be allocated to:
- Affordable housing projects, with a long-term mechanism in place to ensure lasting affordability
- Detached additional dwelling unit (identified as secondary dwelling unit in LUB)
dwelling unit, affordable housing means a deed restricted and/or rent controlled dwelling unit that is secured by a housing agreement, and is available to persons with a low income as defined by housing agreement for the dwelling unit; (Denman LUB)
secondary dwelling unit means a dwelling unit, which may be a moveable housing unit, that is accessory to a permitted principal dwelling unit and which is limited in floor area (Denman LUB . Note: Staff are recommending these units be referred to as accessory dwelling units to provide consistency with provincial and federal definitions. “Secondary dwelling unit” typically refers to a secondary suite that is within a primary residence)
Exploring Options for the Denman Island Density Bank
Two primary options are under consideration:
- Replace the Density Bank with stronger OCP policies and zoning regulations that clearly guide where and how growth occurs.
- Improve the Density Bank by refining its processes, aligning it with local housing needs, and simplifying administration.
Comparison of Options for the Denman Island Density Bank
| Category | Current Density Bank | Option 1: Replace with Policy-Based Framework | Option 2: Improve and Retain the Density Bank |
| Policy Location | Appendix D of the OCP | Move operational details to LUB; keep policy direction in OCP | Same as Option 1 |
| Banked Densities | 7 densities currently held | Recognize existing banked densities; guide future use through policy but no predefined limit | Retain and recognize the 7 banked densities and add more based on specific criteria |
| How Densities Are Added | Through rezoning tied to: • Subdivision potential removal • Land or park dedication • LTC-initiated zoning changes |
No density bank—growth managed through rezoning only, guided by policy and criteria | Continue adding densities from: • Removed subdivision potential • LTC-initiated changes • “No net increase” transfer from unsuitable areas |
| How Densities Are Used | For affordable housing projects secured through housing agreement and secondary dwelling units (accessory dwelling units (ADUs)) | Continue to focus on affordable housing, but also consider other flexible housing options remove secondary dwelling units ( ADUs) from consideration as density in bank | Same as Option 1 |
| Housing Targets | 5% increase allocation only to special needs, affordable housing and secondary dwelling units (ADUs) | Create target for affordable housing based on housing needs in the context of housing for the Island as a whole. | Same as Option 1 |
| Rezoning Requirements | Requires a rezoning bylaw amendment | Maintain rezoning requirement, with clearer criteria through Development Application Information (DAI) bylaw | Same as Option 1 |
| Transparency | Moderate—process may be unclear to the public | High—evaluation criteria, growth targets, and rezoning standards made explicit | Moderate – High—update of density bank provides opportunity to provide clarity |
| Growth Management Tools | Managed indirectly through limiting density | Introduce clear buildout targets and use analysis of available data to identify where density can and cannot be increased | Same as Option 1 |
| Subdivision Control | None | Proactively remove subdivision potential in areas with high ecological, cultural, or climate risk | Same as Option 1, but densities removed are added to the Bank |
| Conservation Linkages | Limits density to 7. Density transfers allowed when conservation occurs | Conservation objectives remain embedded in OCP and LUB and density transfer is still supported | Limits density to those banked . Keep and expand the use of the density transfer policy to support conservation |
| Secondary Dwellings | Secondary Dwellings (ADUs) draw from the density bank | Not applicable—density bank would no longer exist | Remove Policy 12 reference so secondary dwellings (ADUs) no longer draw from the bank |
| Administrative Simplicity | Less efficient—requires OCP and LUB amendments for each density use | Greater clarity and simplicity by removing the density bank and focusing on site-specific rezoning | Improved administration by moving density table and procedures to the LUB. |
| Flexibility | Limited flexibility due to rigid bank structure | Flexible, criteria-based approach that evolves with OCP amendments. | Increased flexibility through increasing growth limit to match housing need. |
What are we hearing from the community about the Density Bank?
- Concerns about removal: Many residents worry that eliminating the bank could lead to overdevelopment.
- Support for affordability: Strong calls to prioritize densities for affordable and social housing.
- Desire for revision: Others believe the current system is outdated and want a broader suite of tools that reflect present-day challenges and priorities.
Lot Coverage and Floor Area Restrictions
What Are Lot Coverage and Floor Area?
Lot Coverage
Lot coverage refers to the percentage of a lot’s total area that is covered by buildings, measured by the building footprints (only the area they take up on the ground). It does not account for multiple storeys, just the area occupied on the land.
Floor Area
Floor area refers to the total usable interior space of a building across all levels, including upper storeys. It provides a more direct measure of the actual size of a house or structure.
What Lot Coverage and Floor Area Controls Currently Exist?
Current Policy on Denman Island:
- 25% maximum lot coverage for residential lots
What options exist for controlling Lot Coverage and Floor Area?
Lot Coverage Restriction
Lot coverage limits how much of a lot can be covered by buildings and structures. It regulates only the building footprint, not total interior space. This tool is useful for protecting open space, limiting impervious surfaces, and maintaining Denman Island’s natural character.
Recommendation:
- Maximum Lot Coverage: 5%–15%, depending on the lot size.
For example:- Lots under 1 hectare: up to 15% coverage
- Lots between 1–5 hectares: up to 10% coverage
- Lots over 5 hectares: up to 5% coverage
| Lot Size | Lot Coverage | Max Footprint (m2) | Approx. House Size (GFA, 2 Storeys) |
| < 0.6 ha (1.5 acres) | 15% | 900 m²
|
1,800 m² (19, 375ft2) |
| 1.2 ha (3acres) | 10% | 1200 m² | 2400m² (25,833ft2) |
| 5 ha (12.35 acres) | 5% | 2500 m² | 5,000 m² (53,820 ft²) |
| 10ha (24.70 acres) | 5% | 5000 m²
|
10,000m² (107,639ft2) |
| 10 ha + | 5% |
Alternative:
- An alternative approach is to select a different range of lot coverage percentages.
Floor Area Restriction
Floor area limits the total interior space of a building across all floors. Unlike lot coverage, it directly controls the overall size of a building. These restrictions are often used to discourage oversized homes and support modest, attainable housing.
Recommendation:
- Establish a fixed maximum floor area for the principal dwelling on all lots (e.g. 250m²/2,690 ft²)
- Note: A 250 m² home on a 0.5 acre lot uses ~6% coverage.
- Variances may be granted on a case-by-case basis, subject to review and approval by the LTC.
Alternative to Floor Area Restrictions:
- Set grouped maximum floor areas by zoning (e.g., R1 zones allow smaller maximums than R2).
- Set grouped maximum floor areas by property size (e.g., 0–5 acres = 2,000 ft², 5–10 acres = 4,000 ft², etc.).
Recommended Approach
Staff recommends adopting a combined approach that limits both lot coverage and gross floor area, with a maximum GFA of 250 m² for principal dwellings. This strategy ensures that buildings remain appropriately sized in both footprint and overall interior space. Limiting lot coverage helps protect open space, maintain the natural character of the area, and control impervious surfaces that impact drainage and ecology. Meanwhile, a fixed GFA cap discourages oversized homes, promotes modest and attainable housing.
What are we hearing from the community regarding controlling lot coverage and floor area?
At this stage, we’ve received limited input from the community on lot coverage and floor area regulations.
Secondary Dwelling Units
What is a secondary dwelling unit?
A secondary dwelling unit is a small, self-contained home with its own kitchen, bathroom, and sleeping area, located on the same property as the main house. These can include:
- Secondary suites – units inside the main house (e.g., basement or in-law suites)
- Accessory Dwelling Unit (ADU)– stand-alone units like garden suites, tiny homes on wheels, cob houses, or modular homes
What is currently permitted on Denman Island?
- Secondary suites are permitted in the R2 (Rural Residential), A (Agriculture), F (Forestry), and RE (Resource) zones.
- Detached secondary dwellings are allowed in the same zones with a Temporary Use Permit (TUP).
Options for Supporting Secondary Dwelling Units:
- Remove the TUP requirement for detached secondary dwelling units
- This would permit secondary dwelling units outright in the R2 (Rural Residential), A (Agriculture), F (Forestry), and RE (Resource) zones
- Some community members say the TUP process is a barrier, and this has led to people building units without permits
- Removing the TUP would require adjusting how density is calculated and managed through the “density bank”
- Allow either an attached or detached secondary unit on eligible lots
- Currently, only secondary suites are permitted as a principle use. This option would allow property owners to choose either type
- Conditions could include size limits, location close to the main house, and water collection requirements to reduce environmental impact
- This approach would also involve removing the TUP requirement for detached units
- Permit secondary dwellings only in suitable areas
- Use mapping to guide where these homes can go, avoiding sensitive areas like shorelines, steep slopes, wetlands, and areas of archeological and environmental significance (eg. not with in 200 metres from the natural boundary of the sea)
- Preliminary mapping suggests limited areas are suitable for additional density and intensity of land use
- Legalize existing unpermitted secondary units
- The HAPC and Denman Local Trust Committee (LTC) recommend legalizing all existing units to protect current rentals
- Staff caution that without proper review, this could raise safety, environmental, and fairness issues
- If the LTC moved forward with legalizing existing secondary units, a list of criteria would need to apply
There is broad community support for secondary suites and for removing the TUP requirement. However, some concerns remain about the potential for a large increase in small dwellings.
To provide context, the number of new units both primary and secondary (based on Siting & Use Permits) from 2018-2022:
| Year | Number of units |
| 2022 | 12 |
| 2021 | 7 |
| 2020 | 11 |
| 2019 | 8 |
| 2018 | 11 |
Contact Trustees:
Sam Borthwick
Denman Island Trustee
E: Trustee Borthwick
T: 1-250-845-9477
David Graham
Denman Island Trustee
E: Trustee Graham
T: 1-250-218*6871
Contact staff:
Narissa Chadwick
E: nchadwick@islandstrust.bc.ca
T: 1-250-405-5189
The public is also welcome to visit Islands Trust offices in person Tuesday – Thursday, 8:30 a.m. – 4:00 P.M. at 700 North Road, Gabriola Island.
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