What is Subdivision?

Subdividing is the ability to create new lots and is referred to as subdivision potential. Subdivision potential is shaped by OCP policies, land use regulations, and the community values in place when they were adopted. As land costs rise, environmental limits tighten, climate change accelerates, and Indigenous reconciliation advances, there is an immediate need to rethink how we regulate land to better reflect current priorities.

What is the current subdivision potential?

Currently, 16 residentially zoned properties on Gabriola Island have the potential to be subdivided into multiple lots. Based on existing bylaws, these subdivisions could result in up to 45 new lots. The existing zoning, which allows secondary suites and additional dwelling units, reflects the potential for up to 90 new dwelling units if the subdivisions were realized.

Each new lot can result in significant impacts on the land, water supply, and cultural heritage. While these impacts can be assessed during the subdivision application process, the community has an opportunity, through the OCP review, to consider the costs and benefits of allowing further subdivision.

What other options are there for regulating subdivision?

Option 1:

Limit subdivision to only allow new lots in limited instances, such as when land is donated for building affordable housing, or where the new lot is a nature reserve, park or protected area. This option would remove the potential for subdivision in all areas where it is currently permitted. By reducing the build-out potential on the island, these densities could be reallocated to projects that result in affordable or attainable housing.

A landowner could still apply to rezone their property to allow subdivision. While this would be an extra step, it would allow the proposal to be reviewed to ensure that the subdivision is undertaken in an appropriate location (e.g. there is sufficient water, it is not disruptive to sensitive ecosystems or culturally sensitive areas).

Option 2:

Limit subdivision to only suitable areas. Suitable areas are areas where negative impacts to the environment, cultural heritage, and the sustainability of freshwater resources are less than in other areas, and access to amenities, trails and transportation (ferry, and Gertie bus route) is higher than in other areas. These areas can be identified using mapping work recently done by Islands Trust, including the water balance work. As with Option 1, the densities that would be removed could be reallocated to projects that result in affordable or attainable housing.

Option 3:

Continue to permit subdivision in locations where there is presently the potential to create additional residential lots. This maintains the status quo and does enable additional residential lots to be created. With the rising costs of land, subdivision for single family dwellings are unlikely to create opportunities for attainable or affordable housing.

What is Rezoning?

Rezoning is a change to the zoning regulations that apply to a particular lot or area. Changes to zoning are the only way to increase the permitted density or change the permitted uses on a parcel of land. Zoning changes can be initiated by the local trust committee (LTC), or a property owner can apply to rezone their land through a bylaw amendment application. The LTC must consider applications that are submitted.

It is important to incorporate community values into Official Community Plan policies, which are relied on when changes to land use or density are considered.

Options?

Considerations for any rezoning for additional density

Community need: The current OCP considers rezoning for multi-dwelling residential for only special needs, seniors, and affordable housing. This could be extended to housing that is affordable to low to moderate income earners (attainable housing*).

Suitability of the Land: The currently OCP relies on subdivision and buildout potential to address housing needs associated with population growth. Criteria such as limiting impact on sensitive ecosystems, archeological sites and areas of Indigenous cultural significance could be considered, as well as groundwater considerations, sewage capacity, access to services and amenities, and other criteria.

Size and Siting of Buildings: Size and siting is already considered in existing policies and regulations. These could be revisited in keeping with the values identified.

Water Collection Cistern Requirements: Freshwater collection cisterns could be required for all new builds to help reduce impact on limited groundwater resources.

*Attainable housing means homes that people earning average local wages can realistically afford, without requiring subsidy, so they can live and work in the community. Housing agreement is not necessarily required.

OCP policies could support the following options (not mutually exclusive):

Option 1: Cluster Housing

Policies that allow re-zoning for Cluster Housing (Community-Scaled, Living, Units, Sited, Together for Ecological and Economic Resilience). Cluster housing groups several small homes, attached or detached, on one lot without subdividing the land. This reduces development footprint and improves space and infrastructure efficiency. Rezoning may require housing agreements and limits on individual or total combined floor area.

Option 2: Small Unit Clustered Housing

Policies that support small unit housing. This is similar to Cluster Housing as it encourages clustering and housing agreements, however, it is distinct in that it considers the opportunity for a number of small units including mobile units, such as tiny homes on wheels or manufactured homes, on a lot with shared facilities such as laundry and common rooms.

Option 3: Flexible Housing

Policies that allow for multiple additional dwelling units in suitable areas within a maximum combined floor area for all units. This is different from the above as it is working with smaller numbers of units and number of units would be determined by size of lot. Housing agreements would not be required. On Mayne Island this has been introduced as “flexible housing” zoning.

Option 4: Density Bonus for Conservation or Restoration

Policies that enable density bonuses to be incorporated into the base zoning for residential property. This would establish criteria that, if met, would allow additional density on residential lots without requiring a rezoning process. For example: protection of X amount of hectares for conservation or restoration could permit an additional unit.

Gabriola OCP Review Discussion Guide – Climate Change

Gabriola OCP Review Discussion Guide – Connectivity

Gabriola OCP Review Discussion Guide – Cultural Heritage Protection

Gabriola OCP Review Discussion Guide – Waste & Water

Water is essential for life and a healthy environment on Gabriola Island, yet we often struggle to integrate water-related issues into long-term planning. Do we have enough water for current and future needs? How does land use affect water quality? Where are critical groundwater recharge zones, and how can we protect them?

To help answer these questions, Islands Trust is developing a Freshwater Footprint to measure and support freshwater sustainability. The Footprint considers water availability, distribution, and quality, along with island-specific water use, human impacts, Indigenous knowledge, and climate adaptation.

The Freshwater Footprint will inform land use planning, the Gabriola Island Community Plan review, and practical steps to protect local water resources.

FAQs: Freshwater Footprint – Gabriola Island Pilot Project

Freshwater Footprint Workshop Series
The Freshwater Footprint Workshop Series explores local initiatives, and innovative approaches to preserving and protecting Gabriola Island’s vital freshwater resources.

Session #1: Community-based Freshwater Monitoring & Mapping
This session explored freshwater sustainability and the role of monitoring in understanding local water concerns.

May 1, 2025 | 4:00 – 6:00 P.M.
Topics & Panelists:

• William Shulba, Freshwater Specialist, Islands Trust
• Community Monitoring Networks in the Regional District of Nanaimo and on Gabriola Island
  Erica Forssman, Regional District of Nanaimo, Drinking Water and Watershed Protection Program
• Community Flow Monitoring Network
  Ally Badger, B.C. Conservation Foundation, Aquatic Research and Restoration Centre
  Sarah Hardy, Ministry of Environment and Parks, Hydrometrics and Hydrology Program
• Gabriola Island Freshwater Resources – Inventory and Hazards
  Sylvia Barroso, GW Solutions
• Gabriola Monitoring Networks Strategies and Opportunities
  Moderated Panel Discussion and Q&A Session
  

Watch the recording here.

Session #2: Defining the Freshwater Footprint
This session introduced key concepts of freshwater footprints and water security, and identifies indicators of water sustainability tailored to island communities.

May 29, 2025 | 3:30 – 6:30 P.M.
In-person in the Heron Room, The Haven, Gabriola Island
Topics & Panelists:

• Freshwater Footprint: Concepts and applications for water protection and management in the Islands Trust Area
  Sylvia Barroso, GW Solutions
• Freshwater Footprint in the Islands Trust Area
  William Shulba, Freshwater Specialist, Islands Trust