1.2             General Description of Area

This document presents a plan for the area known as the Gos- pel Rock / Shaw Road Neighbourhood described in the Town of Gibsons Official Community Plan (OCP). The OCP was previously amended to include the waterfront area south of Gower Point Road within the Gospel Rock Neighbourhood Plan area.

The location of the Plan area within the context of the overall Town boundaries and the specific boundaries of the Plan area are illustrated in ““Figure 1.1 Gospel Rock Neighbourhood Plan Area Boundaries”. The area covers approximately 140 acres and has fragmented property ownership held in 14 different titles.

1.3                Context of Official Community Plan

The Town’s Official Community Plan provides an essential con- text for the planning and development of the Gospel Rock / Shaw Road Neighbourhood. The neighbourhood is identified as a Neighbourhood Plan Area on Schedule A – Land Use Plan, and Section 7.6 of the OCP contemplates that the Gospel Rock area will be considered for future residential development in the longer term.

The OCP recognizes both the environmental and recreational attributes of the area as well as the development interests of the private property owners. Policy statements in the OCP speak to the potential acquisition of park land by way of the Town utiliz- ing its tools as well as community interest groups seeking ways to raise funds.

There are a number of policies within the OCP that speak directly to the Gospel Rock Neighbourhood Plan, briefly described as fol- lows:

–                          incorporate energy efficiency, smart growth, and sustainability principles in the Plan;

–                          address land use, building design, transportation, and servicing matters in the Plan;

–                          consider including a hotel / retreat destination and arts and cultural centre / park in the Plan area;

–                          support park land acquisition by way of the town utilizing its own statutory tools as well as providing assistance to community interest
        groups seeking ways to raise funds; and,

–                          designate all multi-family and commercial development as Development Permit areas.

Portions of the Gospel Rock Neighbourhood are situated within Development Permit Area No. 1 (Geotechnical Hazard) and Development Permit Area No. 2 (Environmentally Sensitive). This signals that these issues need to be addressed both in the plan- ning of the neighbourhood and the development of the lands.

1.4                 Purpose and goals of the Neighbourhood Plan

The purpose of the Gospel Rock Neighbourhood Plan (Plan) is to manage the growth and development of the neighbour-

hood by defining and designating land uses for the area as well as describing policies, standards and guidelines to protect the natural environment, allow for the provision of affordable hous- ing, and control the form and quality of development within both the public and private realms. Given the modest growth rate that Gibsons is expected to experience of the next 20 years and given the other growth areas in the Town (Upper Gibsons and the Har- bour Area), the build out period of the Gospel Rock neighbour- hood is anticipated to be in the 25 - 50 year range.

1.5                   Overview of Planning Process

In November 2005, The Town of Gibsons began the Gospel Rock Neighbourhood Plan process. The Town was committed to a highly engaging, participatory process that would lead to a Plan based on the principles of smart growth and sustainability. The Plan must be well supported, technically robust and balance the needs of different stakeholders including landowners, residents of Gibsons and Elphinstone, the Town and other government agencies.

The Council appointed a community-based Gospel Rock Select Committee to work with a consulting team in preparing the Plan. Several concept plans were developed and evaluated. In 2008, the Town asked the community by way of a survey to express their preference for either one of two concept plans (Plans A and B prepared by the consulting firm Holland Barrs). Based upon the results, Town Council decided not to proceed with either option.

In 2009, the Council appointed the Gospel Rock Refinement Working Committee consisting of three members of Council, the Town’s Planner, a planner representing the major property owners in the area, and a planning consultant representing the Town. The Committee’s mandate was to recommend a revised land use

Figure 1.1   Gospel Rock Neighbourhood Plan Area  Boundaries

3.0                          NEIGHbOURHOOD LAND USE PLAN AND
    POLICY FRAMEWORK

3.1     Major Land Use Issues

During the course of the Plan preparation process, a number of major issues surfaced that significantly influenced the direction of the Plan.

Use of the Waterfront Land

Approximately 4.1 acres (1.65 ha) of land consisting of 1552 feet (473.3 metres) of shoreline lying south of Gower Point Road is situated within the Plan area. Community groups such as the Friends of Gospel Rock Society and the Sunshine Coast Conserva- tion Association as well as general community sentiment have expressed the view that the waterfront land should be preserved in its natural state due to its environmental attributes and should be dedicated to the Town as public land. On the other hand, the land is privately held and successive owners have expressed an interest in developing a portion of the waterfront land and a willingness to transfer ownership of the remaining portion to the Town as park.

A report regarding the environmental sensitivity of the waterfront land was completed by Mr. Paul Van Poppelen and was received by the Town in April 2010 and subsequently peer reviewed by Whitehead Environmental Consultants Ltd.

Though these reports concluded that portions of the waterfront lands were of lesser environmental significance, considering the perspectives from the various stakeholders and public input, it was recognized that housing development is not a desired use on these lands.

Traffic Flow and Access

Due to its location within the Town on a rock promontory, the Gospel Rock area is currently not serviced with a well devel- oped road system. The only current access to the area is off of Chaster Road that lies outside of the Town’s jurisdiction within the adjacent Elphinstone rural area. Should the Gospel Rock area be developed at the densities anticipated within the Town’s Official Community Plan, improved road access will be required.

A variety of road options to accommodate improved road access were examined. The options were considered within the context of a number of factors including impacts upon existing neighbourhoods, topographic and environmental constraints, and development phasing and sequencing. Providing a major access by extending Shaw Road southward would require a major crossing of the Charman Creek Ravine. Extending Bayview Heights Road as a major access road westward and up the hill would impose upon the existing neighbourhood and would be extremely intrusive both visually and environmentally.

It became clear that there was no one option that would meet all the interests from all the various stakeholders and therefore the Neighbourhood Plan would need to provide for a balanced solu- tion incorporating both a short term and long term approach for managing traffic flow generated by the Gospel Rock neighbourhood.

Environmental Considerations and Open Space

Although portions of the Gospel Rock area have been altered over the years, the area still has a number of environmental features that need to be respected in the planning of a new neighbour- hood as identified on ”Figure 3.1 Gospel Rock Environmentally Sensitive Areas”. The Charman Creek Ravine, some small wetlands dotting the northern portion of the area, the dry land forest along the eastern escarpment, and the shoreline foreshore are all environmentally sensitive areas that have been identified in Paul van Poppelen’s report entitled “Gospel Rock Neighbourhood Plan Area: Ecosystem and Wildlife Area Use Classification” dated October 2009. All these features provide important habitat for wildlife in the area. The Neighbourhood Plan policy framework needs to speak to protecting these areas and minimizing the impact that development would have on them.

Although held privately, the general public has historically enjoyed use of the Gospel Rock area, both “Little Africa” and the “Cross Rock” in the upper bench, and the Gospel Rock viewpoint south of Gower Point Road. Given the importance of these particular areas to the community, it was determined that it would be critical for these areas to be identified as public use areas within the Neighbourhood Plan with the consent of the respective landowners.

Figure 3.1 Gospel Rock Environmentally Sensitive Areas

Figure 3.2 Gospel Rock Neighbourhood Design Concept

The Neighbourhood Design is conceptual: future development is to be generally consistent with the Neighbourhood Design, though exact locations of roadways, parks, greenspaces, etc. are subject to further detailed study and negotiation at the appropriate juncture. See Land Use Policies in Section 3.4.

Figure 3.3 Circulation

3.3       Land Use Plan Map

Applying the planning goals and principles and in considering the various issues, a Land Use Plan was generated and is shown in Figure 3, the highlights of which are as follows:

–            Designation of the Charman Creek riparian area as greenbelt;

–            Designation of two north-south wildlife corridors;

–            Protection of the dry land forest and geotechnically challenged steep slopes on the east side of the area;

–            accommodation of both north-south and east-west trail networks;

–            Designation of viewpoint parks in “little africa” and at gospel rock;

–            Provision of landscaped buffers and increased lot depth along the alr / non-alr boundary on the west side of the plan area;

–            Designation of a small centralized commercial / community gathering point along with an active park;

–            Provision for a mix of housing types ranging from larger single family lots along the south and west perimeters, smaller single family lots in
       the interior, and cluster housing, townhouses, and apartments.

–            Provision of sustainable servicing standards (reduced road widths, rain gardens, etc.) and energy sources (geothermal);

–            no major road access connections to Bayview heights road or to gower Point road; and,

–            Development of a new north south road linking the gospel rock area with Shaw Road (north) via Inglis Road.

Figure 3.8 Neighbourhood Focal Point Concept Image

3.5.2                       Commercial Land Use Policies

o                        To enhance the walkability and livability of the neigh- bourhood, a small commercial area in the range of up to 5,000 square feet serving the needs of the neighbourhood
          will serve as a focal point and gathering space for the neighbourhood, at a location generally consistent with the Land Use Plan Map.

o                        The commercial floor space may be accommodated within a mixed use building with residential units placed above the commercial space.

o                        Commercial development shall be subject to develop- ment permit area guidelines that will be established in conjunction with the rezoning of the commercial site. The
          guidelines will be similar to the ones established for Up- per Gibsons area - Development Permit Area No. 3.

3.5.3                  Institutional Land Use Policies

o                        To create a diverse neighbourhood, institutional land uses such as places of worship, community facilities, educational facilities, and similar types of uses shall be
          accommodated within any of the land use designa- tions within the Gospel Rock neighbourhood, subject to rezoning.

o                        The development of a new church on the site, stand alone or in combination with a residential component, shall be considered as an appropriate neighbourhood use subject
          to rezoning.

o                        In accordance with Section 6.2 of the Official Community Plan, land will not be reserved for a new elementary school site within the Gospel Rock neighbourhood given the
          expected reduction in school enrollment within the School District.

Figure 3.9  “Cross Rock” Proposed Park Area

3.5.4                       Park and Trail Policies

• As development of the neighbourhood evolves, the Town will secure parks and open space in locations generally consistent with the Park and Greenbelt/Natural Open Space designations on the Land Use Plan Map.
• Land required for public access and designated as Park on the Land Use Plan shall be acquired by the Town as park land as a condition of either rezoning or subdivision approval. Of particular importance is the Little Africa / Cross Rock area on the high side of Gower Point Road and the Gospel Rock viewpoint area on the low side of Gower Point Road.
• The actual boundaries of the park dedication  areas will be determined based upon site specific survey, the intent being that the configuration of the parks will be based upon maximizing park values and limiting intrusion from adjacent non-park uses.
• Regarding the land below Gower Point Road, the area around Gospel Rock shall be dedicated as Park and the surrounding area shall be designated as Greenbelt / Natural Open Space as indicated on the Land Use Map.
• To reinforce the function of the neighbourhood’s central community gathering point, land will be reserved for a neighbourhood park to accommodate the recreational needs of the residents of the neighbourhood
• The neighbourhood shall be serviced with a comprehensive trail network, which is shown on the Circulation Map. The trail network is intended to connect the various residential areas with the community gathering points and park areas as well as provide linkages with the adjacent areas.

3.5.5                       Open Space and Environmental Policies

• Land designated Greenbelt / Natural Open Space on the Land Use Plan Map shall not be developed due to its environmental sensitivity, its function as a vegetated buffer and its aesthetic value. The Charman Creek ravine and its riparian area, the dryland forest on the east flank of neighbourhood, two north south greenbelts / wildlife corridors and a small wetland in the northern portion of the neighbourhood are designated Greenbelt / Natural Open Space on the Land Use Plan Map and shall be protected through the administration of applicable federal and provincial legislation and the Town’s development permit mechanism.
• Should a development be proposed on a parcel of land which is partially designated Greenbelt / Natural Open Space, the Town will require that the proponent submit detailed environmental impact studies conducted by qualified environmental professionals to rationalize the boundaries of the development area and the measures that will be undertaken to mitigate any impacts.

The form and character of small lot residential development shall be subject to the guidelines in Development Permit Area 10 attached as Section 5.

The form and character of cluster housing residential development shall be subject to the guidelines in Development Permit Area 11 attached as Section 6.

Development of land that is identified as Environmentally Sensitive on Development Permit Area No. 2 shall be subject to the applicable development permit guidelines.

Development of land that is identified as a Geotechnical Hazard on Development Permit Area No. 1 shall be subject to the applicable development permit guidelines.

3.8    Community Amenities

Development proposals requiring rezoning shall be required to comply with the Town’s Affordable Housing and Community Amenity Policy.

Specific community amenities that developers will be required to provide to the Town will be negotiated on a case by case basis in accordance with the terms of the Affordable Housing and Com- munity Amenity Policy.

Figure 5.1  Development Permit Aareas No. 10 and No. 11 Map

Development Permit Area boundaries are conceptual exact locations will be determined at the appropriate juncture.

5.0     GOSPEL ROCK SMALL LOT DPA NO. 10

Purpose

The Gospel Rock Small Lot Development Permit Area is designated under Section 919.1(1)(e) of the Local Government Act for the purpose of establishing objectives for the form and character of intensive residential development.

Area

The Gospel Rock Small Lot Development Permit Area is shown as Development Permit Area No. 10 on Figure 5.1 of the Gospel Rock Neighbourhood Plan.

Justification

The Gospel Rock Neighbourhood Plan provides for a compact mix of land uses, including various residential forms, a commercial node, civic facilities, and an interconnected system of parkland and open spaces. One of the objectives of the Gospel Rock Neighbourhood Plan is to encourage housing that is accessible to a cross-section of society, and is adaptable to the changing demo- graphics and lifestyles of the Town’s residents. Cottage Residential development (a form of small lot development) in the Gospel Rock Neighbourhood Plan Area is intended to provide the community with an attainable market housing option.

The objectives of this DPA designation are to ensure that Cottage Residential development in the Gospel Rock Neighbourhood Plan Area:

o                        respects the existing form and character of the Town; and

o                        provides residents with high quality affordable housing options.

Guidelines

Development permits issued in this Development Permit Area shall consider the degree to which an application is in accordance with the following guidelines:

General Form and Character

Development should promote a small town character by encour- aging architecture, landscape design and environmental settings that respect the surrounding context.

Local and natural building materials such as timber and stone should be used.

The use of natural colours is encouraged, and the use of a variety of complementary colours as accents is also encouraged to pro- mote visual interest.

Reflect an environmentally-friendly (“green”) image through the design and exterior features of the development. This image may be achieved in such ways as:

o            buildings and roadways sited to retain existing trees, vegetation, and other important natural features;

o        incorporation of visible “green” landscaping features such as rain gardens and infiltration trenches; and

o        incorporation of visible “green” building features and materials such as skylights, rain barrels, local wood and stone, green walls and roofs, rain gardens, solar panels,
          recycled exterior materials, exterior elements for window shading.

Building Massing and Street Rhythm

To achieve harmonious integration with surroundings, develop- ment should be sensitive to the scale, mass, and form of adjacent buildings.

Secondary dwelling units should complement the scale, mass, built form and character of the principal dwelling unit.

Roof pitches at least 6 in 12 are encouraged.

Vary the exterior design of buildings facing a street or lane from those of similar buildings adjacent and nearby, so that front eleva- tion designs have significant variations in the disposition and articulation of design features. Mirroring nearby front elevation design alone is not an adequate variation.

Relationship to the Street

Street setbacks for principal dwellings should be shallow enough to provide for building/sidewalk conversation.

Orient the principal dwelling to the street and to encourage natu- ral surveillance of the street.

Orient duplexes on a corner lot towards both streets.

Incorporate a covered porch or veranda to the street entrance of the unit; where possible, raise the floor level of the main floor above grade at the front of the unit, providing greater surveillance more traditional character.

For developments having units located to the rear of the proper- ty, such as coach houses, ensure that the approach to those units from the street is as obvious and direct as possible.

Solar Orientation

The design should consider the effects of climate and solar orien- tation to maximize energy efficiency and solar access.

Buildings should be oriented to maximize solar exposure while minimizing shadow impacts on adjacent buildings and common areas.

Building orientation and massing should ensure that a majority of primary living spaces receive direct sunlight for the daylight hours at equinox.

Parking and Access

A walking path providing direct access to the principal dwelling unit should be clearly visible from the street.

All lots should have direct access to the larger pedestrian circula- tion system via park corridors, pathways, and/or sidewalks.

All buildings should be sited to provide for safe fire access to all units on site from the front of the lot.

The use of cul-de-sacs should be avoided.

Parking pads and garages should be located to the rear or side of the primary dwelling unit wherever possible.

Vehicular access from the street is strongly discouraged unless a property is not served by a lane or is subject to prohibitively steep grades.

Screening and Landscaping

Retain the existing natural landscape to the extent possible, espe- cially where it can function as a buffer between adjacent proper- ties. Where areas that have been designated for natural landscap- ing in the required Landscape Plan have been cleared, this land should be replanted with native trees and shrubs.

Retain a minimum 30% tree cover on each lot where possible. Street and yard trees are encouraged wherever possible.

Street and yard trees are encouraged wherever possible, and should be appropriately sourced and spaced to ensure consistency between building features, yard landscaping, and street trees and street furniture. Species should be selected that are non-intrusive and minimize damage to adjacent pavements and underground servicing.

Plant deciduous trees and shrubs to shade buildings in summer but allow for solar gain in the winter.

Avoid the use of solid fencing or continuous buffers of vegetation higher than 1.2 m in front of the primary dwelling unit.

Provide a landscape screen for garages and parking pads that are visible from the street.

Landscape the space between the fence and the lane, to create a rhythm of green spaces along the lane.

6.0     GOSPEL  ROCK CLUSTER HOUSING DPA NO. 11

Purpose

The Gospel Rock Cluster Housing Development Permit Area is designated under Section 919.1(1)(e) of the Local Government Act for the purpose of establishing objectives for the form and character of intensive residential development.

Area

The Gospel Rock Cluster Housing Development Permit Area is shown as Development Permit Area No. 11 on Figure 5.1 of the Gospel Rock Neighbourhood Plan.

Justification

The Gospel Rock Neighbourhood Plan provides for a compact mix of land uses, including various residential forms, a commer- cial node, civic facilities, and an interconnected system of park- land and open spaces. One of the objectives of the Gospel Rock Neighbourhood Plan is to encourage housing that is accessible to a cross-section of society, and is adaptable to the changing demographics and lifestyles of the Town’s residents. Small lot cluster housing is an innovative form of residential development that provides residents with a variety of housing options on one lot.

The objectives of this DPA designation are to:

• ensure that this type of cluster development respects the existing form and character of the Town;
• create an area having a form that is dynamic, incorporating various development types, and complementary, having a sense of consistency and identity despite the potential for variety;
• provide for high quality, liveable forms; and
• provide residents with high quality affordable housing options.

Guidelines

Development permit applications considered in this Development Permit Area shall demonstrate the degree to which an application is in accordance with the following guidelines:

General Form and Character

Development should promote a small town character by encouraging architecture, landscape design and environmental settings that respect the surrounding context.

Local and natural building materials such as timber and stone should be used.

The use of natural colours is encouraged, and the use of a variety of complementary colours as accents is also encouraged to promote visual interest.

Vary materials and/or colours to distinguish individual dwelling units in the development.

Multiple dwelling units should be built on each lot. These may take the form of principal dwellings with additional dwelling units such as secondary suites, granny flats, and carriage houses; duplexes, triplexes, or fourplexes; or some combination of these forms.

The primary residence should be sited to allow for the future development of additional dwelling units such that a density of 16 units per acre could be achieved over the long term. The proponent must submit a conceptual plan showing how multiple dwelling units (up to 16 units per acre) could be accommodated on each lot. The conceptual plan should show future servicing and access plans.

Development should provide a variety of housing types and sizes to address the needs of seniors, young families, and empty nesters.

Reflect an environmentally-friendly (“green”) image through the design and exterior features of the development. This image may be achieved in such ways as:

• buildings and roadways sited to retain existing trees, vegetation, and other important natural features
• incorporation of visible “green” landscaping features such as rain gardens and infiltration trenches
• incorporation of visible “green” building features and materials such as skylights, rain barrels, local wood and stone, green walls and roofs, rain gardens, solar panels, recycled exterior materials, exterior elements for window shading

Building Massing and Street Rhythm

To achieve harmonious integration with surroundings, develop- ment should be sensitive to the scale, mass, and form of adjacent buildings.