Official Community Plan Bylaw 4942 (2025 Consolidated)
Oak Bay, British Columbia
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Oak Bay Official Community Plan Bylaw, 2025
Consolidated for Convenience Only
This consolidation is not a legal document. Certified copies of the original bylaws should be consulted for all
interpretations and application of the bylaws of this subject.
Consolidated up to March 9, 2026 to include Bylaws:
4949
March 9, 2026
THE CORPORATION OF THE DISTRICT OF OAK BAY
BYLAW NO. 4942
A Bylaw to adopt the Oak Bay Official Community Plan Bylaw, 2025
WHEREAS pursuant to Section 473 of the Local Government Act, a local government may adopt
one or more Official Community Plans; and
WHEREAS pursuant to Section 475 (2) of the Local Government Act, Oak Bay Municipal Council
has provided one or more opportunities for consultation with persons, organizations and
authorities it considers would be affected by the Official Community Plan, and that consultation
activities have been early and ongoing;
WHEREAS pursuant to Section 477 (3) of the Local Government Act, in preparing the Official
Community Plan, and after first reading, Oak Bay Municipal Council has given consideration, in
sequence, to its most recent financial plan and any waste management plan that is applicable in
the Municipality; and
NOW THEREFORE the Municipal Council of The Corporation of the District of Oak Bay, in open
meeting assembled, enacts as follows:
1.
The document entitled "Oak Bay Official Community Plan 2025" and its associated appendices,
maps, schedules, tables and figures, all attached as Schedule A-K to this bylaw and made a part
of this bylaw, is hereby designated as the Official Community Plan for the entirety of the area
within the District of Oak Bay's municipal boundary.
2.
No provision in Schedule A-K depends for its validity on any other provision, and if any provision
of Schedule A-K is held by a court to be invalid the remaining provisions of Schedule A-K shall
remain in full force and effect.
3.
Bylaw No. 4620 cited as "Oak Bay Official Community Plan Bylaw, 2014", and all its amendments
and Schedules are hereby repealed.
4.
This Bylaw comes into force upon adoption.
5.
This Bylaw may be known and cited for all purposes as "Official Community Plan Bylaw No.
4942, 2025."
READ A FIRST TIME the
17th day of November , 2025
AMENDED on the
17th day of November , 2025
READ A SECOND TIME the
24th day of November , 2025
PUBLIC HEARING HELD the
9th day of December
, 2025
REGIONAL CONTEXT STATEMENT ACCEPTED
BY THE CAPITAL REGIONAL DISTRICT BOARD
OF DIRECTORS on the
10th day of December
, 2025
READ A THIRD TIME the
11th day of December
, 2025
ADOPTED the
11th day of December
, 2025
___________________________________
_______________________________________
Mayor
Corporate Officer
OFFICIAL
COMMUNITY PLAN
December 2025
Schedule A of Official Community Plan
Bylaw No. 4942
Table of Contents
1.
Introduction
1
1.1.
Land Acknowledgement and Reconciliation Statement ...................................... 2
1.2.
Introduction to Oak Bay .................................................................................. 3
1.3.
Purpose of an Official Community Plan ............................................................. 4
1.4.
Guide to the OCP ............................................................................................ 5
1.5.
Vision ............................................................................................................ 7
1.6.
Goals ............................................................................................................. 8
1.7.
Broad Strategies for Managing Growth .............................................................. 9
2.
Setting the Stage
11
2.1.
Planning Process .......................................................................................... 12
2.2.
What We Heard ............................................................................................. 14
2.3.
Oak Bay's Previous Community Plans.............................................................. 15
2.4.
Demographics ............................................................................................. 17
3.
Climate Change and Energy
22
3.1.
Climate Change and Energy Objectives ........................................................... 26
3.2.
Climate Change and Energy Policies ............................................................... 27
4.
Natural Environment
29
4.1.
Natural Environment Objectives ..................................................................... 35
4.2.
Natural Environment Policies ........................................................................ 36
5.
Community Framework
38
5.1.
Land Use ...................................................................................................... 39
5.2.
Built Environment ......................................................................................... 50
5.3.
Housing ....................................................................................................... 53
5.4.
Commercial and Mixed Use ............................................................................ 64
5.5.
Community Institutional and Social Well-Being ............................................... 67
5.6.
Parks and Recreation .................................................................................... 74
5.7.
Heritage ....................................................................................................... 80
6.
Servicing Our Community
82
6.1.
Transportation ............................................................................................. 83
6.2.
Utilities, Infrastructure and Services ............................................................... 89
6.3.
Risk and Resilience ....................................................................................... 94
7.
Development Approval Information Required
97
7.1.
Development Approval Information ................................................................ 98
7.2.
Temporary Use Permits .................................................................................. 99
8.
Development Permit Areas
100
8.1.
Introduction ............................................................................................... 101
8.2.
Natural Environment Development Permit Areas ........................................... 101
8.3.
Built Environment Development Permit Areas................................................ 112
9.
Heritage Conservation Areas
127
9.1.
Introduction................................................................................................ 128
9.2.
Prospect Heritage Conservation Area (HCA1).................................................. 129
10.
Regional Context Statement
131
10.1.
Purpose ..................................................................................................... 132
10.2.
Regional Growth Strategy Objectives ............................................................ 132
Acronyms and Definitions........................................................................................ 137
Schedules
Schedule B: Land Use Framework Map
Schedule C: Road Network
Schedule D: Watercourses Development Permit Area
Schedule E: Shoreline Development Permit Area
Schedule F: Hazardous Conditions Development Permit Area
Schedule G: Heritage Conservation Areas
Schedule H: Water Network Map
Schedule I: Sanitary Sewer Network Map
Schedule J: Storm Drain Network Map
Schedule K: The Prospect Heritage Conservation Area Guidelines
District of Oak Bay - Official Community Plan | 1
1.Introduction
District of Oak Bay - Official Community Plan |
2
1.1. Land Acknowledgement
and Reconciliation
Statement
The District of Oak Bay is located on the traditional
territory of the Coast and Straits Salish Peoples.
Specifically, we recognize the lək̓ ʷəŋən people,
known today as the Songhees Nation and Esquimalt
Nation, and that their historic connections to these
lands continue to this day.
The District is committed to respectful and ongoing
relationship-building with these Nations.
Guided by Council's February 14, 2022 motion
adopting UNDRIP as a framework for Reconciliation,
Oak Bay commits to engaging with the Songhees
Nation and Esquimalt Nation (known also by their
traditional name of Xwsepsum) on matters related
to land use and community planning that may be of
interest to them, within municipal jurisdiction and
capacity.
The District will seek opportunities for meaningful
dialogue, collaboration, and shared understanding
as we plan for the community's future.
District of Oak Bay - Official Community Plan | 3
1.2. Introduction to Oak Bay
The District of Oak Bay ("the District" or "Oak Bay") is a compact, seaside community located at the southern
tip of Vancouver Island. As of 2021, its population was close to 18,000 residents1. Incorporated in 1906, the
municipality is one of 13 local governments in the Capital Regional District (CRD) and participates in regional
planning activities. The City of Victoria (Victoria) borders part of Oak Bay's west boundary, and the District of
Saanich (Saanich) lies to the north (Figure 1.1). The District acknowledges and respects that it lies within the
traditional territory of the Songhees Nation and Esquimalt Nations of the Coast Salish.
Oak Bay is defined by its attractive residential neighbourhoods, strong sense of community, mature tree
canopy, scenic shoreline, natural environment, and historic character. The municipality includes Oak Bay
Village, a vibrant hub of arts, culture, and business, and other smaller villages and commercial areas within
neighbourhoods. The community has excellent parks and recreation facilities that contribute to a high quality
of life.
The University of Victoria is partially located in Oak Bay, as is a small portion of Camosun College. Other public
and independent schools, two golf courses, a marina, yacht club and hotel are also community landmarks.
Figure 1.1 Location map
1 Statistics Canada. (2022). Census Profile, 2021 Census of Population - Oak Bay, District municipality (DM).
District of Oak Bay - Official Community Plan |
4
1.3. Purpose of an Official
Community Plan
What is an OCP?
An Official Community Plan (OCP) represents a
community's vision for the future and provides a
framework to guide growth and decisions about
the use and management of land and water
resources in the municipality. The OCP describes
how and where residential, commercial and other
types of development will occur; it guides the
provision of necessary road, water, sewer and other
infrastructure; and it provides policies concerning
environmental, economic and community health
and well-being.
An OCP is a bylaw of local government. In British
Columbia, the requirements of an OCP are defined
by the Local Government Act, which requires the
following content in an OCP:
- approximate location, type and density of
residential development to meet anticipated
housing needs for at least 20 years
- approximate location, amount and type of
commercial, industrial, institutional, agricultural,
recreation and public utility land uses
- location of sand and gravel deposits
- restrictions on land subject to hazardous
conditions or environmentally sensitive to
development
- approximate location and phasing of major road,
sewer and water systems
- approximate location and type of present and
proposed public facilities, including schools,
parks and waste treatment and disposal sites
- policies for affordable, rental and special needs
housing
- targets, policies and actions for the reduction
of greenhouse gas emissions and policies and
actions of the local government to achieve those
targets
- a regional context statement where there is a
Regional Growth Strategy
An OCP may also include the following:
- social policies
- environmental policies
- policies relating to alternative forms of
transportation and transportation demand
management
- development permit area (DPA) designations and
associated guidelines
Where the municipality does not have jurisdiction,
the OCP may only state broad objectives related
to the topic. This typically includes matters within
provincial or federal jurisdictions, and it may also
include areas regulated by organizations such as the
school district, universities, or BC Transit.
After the adoption of an OCP, all bylaws enacted and
works undertaken by the local government must
be consistent with the OCP, unless it is amended.
Whereas the OCP indicates the desired future land
uses and services, the Zoning Bylaw regulates
existing and permitted land uses. The Zoning Bylaw
also establishes regulations such as setbacks and
building heights. Parking requirements associated
with permitted land uses are established in the
Parking Facilities Bylaw. Zoning Bylaw amendments
must be consistent with the Official Community Plan.
This 2025 OCP update builds on the OCP from 2014,
while updating it with recent data and community
engagement conducted in 2025 and addressing the
requirements of provincial legislation introduced in
2023. Communities are not static; change is always
occurring. An OCP that reflects the community
therefore must be a "living document" that is
amended from time to time while staying true to its
core principles and goals.
Changes to the OCP can be initiated by Council
or as the result of an approved OCP amendment
application. The OCP must be updated every five years
to ensure that it appropriately reflects community
trends, needs and desires as well as accommodating
the community's housing needs identified in the most
recent Housing Needs Report (HNR).
District of Oak Bay - Official Community Plan | 5
Provincial legislation requires that the OCP
accommodate 20 years of anticipated housing
growth. While twenty years is the primary planning
time frame for the OCP, many of the goals, objectives
and policies have broader implications for a
longer term. For example, climate mitigation and
adaptation strategies address changes anticipated
over an undefined time frame.
Why do we need an OCP?
Oak Bay's OCP will help the community in the
following ways:
- it will proactively define and guide the community
towards a healthy and resilient future
- it will guide decisions by Council when
considering applications for development
- it will guide the decisions of private landowners,
developers, and other authorities
- it will provide a foundation for the municipality's
financial planning, especially for infrastructure
An OCP provides multiple benefits. Preparing an
OCP involves a process through which a community
can identify and address emerging issues and
challenges that affect community well-being. These
issues typically involve topics such as the impacts
of development on community character; the
changing needs of residents; housing affordability;
economic health; public health and safety; heritage
conservation; condition of habitat and biodiversity;
rising energy costs; and changing climatic
conditions.
An OCP that introduces a clear planning and
decision-making framework to guide development
and redevelopment provides certainty for residents,
business owners, developers and other stakeholders
regarding the future use and management of land
and water resources within the community.
An OCP also increases the efficiency of local
government through defining future objectives,
policies and actions.
1.4. Guide to the OCP
Sections 1.0 and 2.0 provide the context,
background, vision and broad framework for the
OCP.
Sections 3.0 through 6.0 cover the key OCP topics.
Each subsection contains the following information:
- an overview and information on existing
conditions, as well as opportunities and
challenges
- objectives related to the topic
- policies related to the topic
Section 7.0 includes the Development Approval
Information Required with applications and policy
for Temporary Use Permits.
Section 8.0 includes the Development Permit Areas
and associated guidelines.
Section 9.0 provides guidelines for Heritage
Conservation Areas.
Section 10.0 includes the Regional Context
Statement and how policies in the OCP align with
regional objectives.
Throughout the Plan, there are call-out boxes that
include definitions and commentary.
Acronyms and additional definitions are located at
the end of this Plan.
Generally, the objectives, land use designations,
policies, implementation steps, Development Permit
Areas and Schedules have force and effect as part of
this bylaw. The other sections and map figures are
provided for information only.
The District is already involved in work related to
many of the goals, objectives and policies to varying
degrees. Rather than repeat "continue to" in front
of these statements, "continue to" is implied where
there is work under way.
District of Oak Bay - Official Community Plan |
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Community
Health &
Resilience
Natural
Environment
Land Use
Housing
Commercial
and
Mixed Use
Community
and Social
Well Being
Parks,
Recreation
and Culture
Heritage
Transportation
Utilities and
Services
Risk and
Resilience
Throughout the OCP engagement processes, residents talked about the
importance of being a sustainable, resilient and healthy community. This OCP,
identifies the relationship between the topic and community health and resilience
at the top of each section.
The diagram below emphasizes the cohesion and integration among all the OCP
sections, and Oak Bay's over-riding commitment to economic, environmental and
social (including cultural) sustainability.
District of Oak Bay - Official Community Plan | 7
1.5. Vision
The vision statement is expressed in the present tense, as it represents the community's
aspirations for how Oak Bay will be described in the future.
Oak Bay is a vibrant and safe community located in a spectacular natural setting. Residents are passionate
and proud of the many qualities that make Oak Bay one-of-a-kind. These include its sense of community,
streetscapes, village charm, residential character, natural coastal environment, parks, recreation facilities
and opportunities, enviable quality of life, vibrant arts and culture scene, high quality education opportunities,
heritage values, mixed architectural styles, and well- conserved historic architecture.
Oak Bay is a dynamic community that respects and enhances the existing community structure and core
characteristics that make it distinct from adjacent communities, while supporting the changes necessary to
meet current and future needs. These features are central to Oak Bay's resilience and sustainability; protecting
the best of what we have and adapting to embrace the future.
Oak Bay is a community that values and supports diversity in its population. It offers a broad range of
residential, social, and cultural opportunities as well as commercial activities for its residents, and strives
to be economically, environmentally and socially sustainable in its practices. Oak Bay's residents are active
contributors in local decision- making, working collaboratively with municipal Council and staff to ensure that
Oak Bay will continue to thrive for years to come.
District of Oak Bay - Official Community Plan |
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1.6. Goals
The goals are presented in a similar order to the
sections of the OCP. In order to advance community
resilience and sustainability, the goals, as well as
the objectives and policies, must be treated as an
integrated whole.
Climate Change and Energy - Work towards climate
change mitigation and adaptation to address the
diverse impacts of climate change, including water
and energy conservation, reduction of greenhouse
gases, and effective management of environmental
resources, land and infrastructure.
Natural Environment - Protect and enhance
the natural features that make the community
environmentally and socially healthy and resilient,
including the terrestrial and marine ecosystems,
foreshore habitats, creeks, and tree canopy.
Neighbourhoods - Sustain the characteristics of Oak
Bay's neighbourhoods that contribute to a sense of
place and attachment to the community.
Built Environment - Balance the community's
architectural, streetscape and garden heritage with
creative new design approaches that complement
the community's character and reflect changing
needs.
Housing - Encourage and support the development
of diverse and inclusive housing options that
accommodate residents of all ages, abilities,
incomes, and family situations.
Business and Commerce - Support the
improvement of Oak Bay's economy through
strategic opportunities that enhance the villages
and other commercial centres and encourage new
businesses to establish and flourish.
Heritage - Maintain, conserve and enhance Oak
Bay's built heritage to retain and renew this legacy
for future generations.
Community and Social Well-being - Encourage
and support community and social facilities and
services that benefit residents of all ages and needs,
foster interaction across generations and cultures,
and strengthen community networks and services in
recreation, education, and health and well-being.
Arts and Culture - Encourage and support arts
and culture in Oak Bay for the benefit of residents,
tourists, and economic development.
Parks and Open Space - Maintain and enhance
parks and open space, including trails and walkways,
and provide opportunities for residents to enjoy the
natural beauty of the municipality and to pursue
active and healthy outdoor lifestyles.
Transportation - Offer a diverse range of
transportation options, and encourage and establish
infrastructure for sustainable and active modes
of transportation to enhance safety, mobility,
connectivity and access within Oak Bay and to
surrounding communities.
Utilities and Services - Provide effective and
reliable utility infrastructure and services to meet
current and future needs.
Risk and Resilience - Engage in risk reduction
and support community resilience to protect lives,
property and the environment.
District of Oak Bay - Official Community Plan | 9
1.7. Broad Strategies for
Managing Growth
Overview
Throughout this and the previous OCP renewal
process, residents talked about the importance
of being a sustainable community and managing
growth in a sustainable way.
The following are the broad objectives and strategies
that establish a framework for the other objectives
and policies in the OCP.
This section includes objectives and policies that
are specifically related to managing growth in
the community, which is required by the Local
Government Act.
1.7.1. Broad Growth
Management Objectives
The broad growth management objectives of the
OCP are as follows:
1. Plan for an increase in residential density to
accommodate long-term housing needs while
respecting the values that make Oak Bay an
attractive, liveable and environmentally rich
community.
2. Follow the existing patterns of land use in
general, considering some expansions of higher
density uses in areas set out in this plan.
3. Support well managed increases in commercial
use to support the needs of residents and visitors
to the community.
4. Plan for well managed growth that adapts
to changing population characteristics and
lifestyles.
5. Encourage high quality community design that
integrates well into the existing fabric of Oak
Bay and protects the community's livability and
environmental values.
1.7.2. Broad Growth
Management Policies
The broad growth management policies of the OCP
are as follows:
BP1. Create and maintain land use designations
that can accommodate 20 years of anticipated
housing need as identified in Oak Bay's
Housing Needs Report, updated from time to
time.
BP2. Encourage infill housing development as a
tool for allowing more density to fit within
neighbourhoods while respecting and
conserving neighbourhood character.
BP3. Accommodate future growth, in general, in
areas that are already developed in order to
retain Oak Bay's natural environment, parks
and open space.
A sustainable community is one that is
economically, environmentally, and socially
healthy and resilient for this and future
generations. It meets challenges through
integrated solutions rather than through
fragmented approaches that meet one of
those goals at the expense of the others. It
takes a long-term perspective, well beyond
the next budget or election cycle. As a result, a
sustainable community manages its human,
natural, and financial resources to meet current
needs while ensuring that adequate resources
are equitably available for future generations.
It seeks a better quality of life for the whole
community without compromising the well-
being of other communities.
District of Oak Bay - Official Community Plan |
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BP4. Encourage mixed use development, integrating
commercial and residential uses, in villages
and other commercial areas to increase the
vibrancy and economic vitality of these areas.
BP5. Implement design guidelines, within
Development Permit Areas for form and
character, to enhance the quality and
integration of new development within existing
neighbourhoods and to mitigate transitions
from higher density and commercial areas to
lower density neighbourhoods.
BP6. Plan for infrastructure, services and amenities
to support a growing population.
Infill Residential Development is a term used
to describe new housing development that is
constructed in an already developed area. Infill
can come in different forms, scale and character
but is typically similar in scale to single-detached
homes. It can include placing additional housing
units on a residential lot, dividing detached
homes into multiple units, building on a vacant
lot, and redeveloping a surface parking area.
Because Oak Bay is an urban community that
has already been developed, infill is a way
to create more housing and achieve higher
densities.
Infill makes use of existing infrastructure and
already disturbed land, reduces development
pressure on natural areas, and can support
increased walking, biking and transit use. In Oak
Bay, infill has the added benefit of bringing more
people closer to existing and planned mixed use
and commercial centres, increasing the viability
and vitality of these important activity hubs.
Successful infill housing is carefully planned
to minimize potential impacts on adjacent
properties. Neighbourhood character, traffic
safety, parking, trees/ landscape, overshadowing
and property values are concerns that are often
raised by existing residents.
District of Oak Bay - Official Community Plan | 11
2.Setting the Stage
District of Oak Bay - Official Community Plan |
12
2.1. Planning Process
The 2025 OCP Update builds on the existing community vision, goals and policies in the previous OCP
adopted in 2014. The 2025 update was completed through a phased process (shown below).
Phase 1: Getting Started
Background review and analysis, draft land use scenarios and policy directions.
Phase 2: Exploring Options
Evaluate and engage on land use scenarios and policy directions.
Phase 3: Drafting the OCP and Zoning Bylaw
Draft and engage on proposed changes to the OCP and Zoning Bylaw.
Phase 4: Finalizing the OCP and Zoning Bylaw
Finalize the Bylaws based on what we heard and updated data.
The updated OCP included engagement with community members, District staff and Council, along
with background research and technical analysis.
District of Oak Bay - Official Community Plan | 13
Responses to
two community
questionnaires
Written
correspondences
Participants across
seven open houses
Oak Bay Committee
and Commission
meetings
1,861
1,021
51
7
Referral letters to organizations and other levels of government, including Songhees and
Esquimalt Nations.
District of Oak Bay - Official Community Plan |
14
2.2. What We Heard
What we heard through engagement has been called out in each of the OCP chapters.
Some of the key themes include:
District of Oak Bay - Official Community Plan | 15
2.3. Oak Bay's Previous
Community Plans
Oak Bay's first plan was prepared by the Capital
Region Planning Board of BC in 1967. That plan
identified Oak Bay as "a community within
a community". The Plan sets a bold vision of
commercial centres, with large "apartment areas"
surrounding Oak Bay Village, portions of the east
shoreline, and north of the high school (Figure 2.2).
The District's major parks are included in this plan,
as are "greenways", which are pedestrian routes
along most of the shoreline connecting to the major
parks. Many of the land use patterns set out in the
1967 plan are still very much in evidence today.
Oak Bay's first actual OCP was adopted in 1981
and it was updated in 1997. The 1997 OCP focuses
on retaining the character of single detached
neighbourhoods and streetscapes, allowing a very
slight increase in multi-unit housing, preserving
and enhancing the natural environment, protecting
and enhancing parks and recreation for their
contribution to Oak Bay's high quality of life,
enhancing pedestrian and automobile mobility and
safety, increasing transit services, supporting the
development of cycling infrastructure, upgrading
utilities and services, reducing street light energy
consumption, and moving utility wires underground.
There have been some significant changes in Oak
Bay and throughout the region since 1997. The
population is aging, environmental impacts are
increasing, and community values have shifted to
a focus on social, economic and environmental
sustainability. There are particular concerns related
to housing. The primary concern in Oak Bay is that a
lack of housing options is limiting the ability of many
people to live or remain living in Oak Bay. There are
also concerns that some of the new development is
compounding the situation and further increasing
housing costs while also changing the character of
Oak Bay's valued neighbourhoods and streetscapes.
Consistent with the OCPs of its day, the 1997 OCP
says very little about many issues that are important
to people today. These include affordable and
inclusive housing, design of development projects,
environmental protection and enhancement,
emergency management, adaptation to climate
change, and energy use.
The most recent (2014) OCP that provides the
foundation for the current update, remains
highly relevant in many respects. It established
a strong vision of a sustainable, healthy, resilient
community and it anticipated the need for new
and expanded forms of housing and expanded
commercial development to support more complete
communities.
This updated OCP addresses the new Provincial
housing mandates to accommodate 20 years of
housing growth while updating key policies to
reflect recent District strategies and plans relating to
housing, infrastructure, environmental protection,
active transportation and climate change.
District of Oak Bay - Official Community Plan |
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THE
GENERAL
PLAN
Figure 2.1 The General Plan, 1967
District of Oak Bay - Official Community Plan | 17
2.4. Demographics
Existing Population
The number of people living in Oak Bay has
changed very little in the past 20 to 30 years. When
the first OCP was prepared in 1981, the population
was 17,815; in 2021 it was 17,990. The housing mix
has also been fairly stable, with about 64% of the
population living in single detached houses and
36% in multi-unit buildings.
The age distribution of the population, however,
is changing. Increasing numbers of residents are
55 or older. The school-aged population is slightly
less than it was 20 years ago (17% of residents in
1991 and 13% in 2021), and this contributed to the
closure of Uplands Elementary School.
A comparison of Oak Bay with the rest of the
Capital Regional District (CRD) shows some
distinctions in Oak Bay's demographics:
-
Oak Bay's population growth is significantly
less than that in the region as a whole (Figures
2.3)
-
The age distribution in Oak Bay is significantly
different from that in the CRD; Oak Bay
has many more people over 55 and many
less between 25 and 44 proportional to the
population (Figure 2.4)
-
Compared to the CRD, Oak Bay has had a
consistently higher proportion of those over 55
for many years (Figure 2.5)
-
Oak Bay's average family income is
significantly more than the average income in
the region (Figure 2.6)
Figure 2.2 Population Distribution in 2021
District of Oak Bay - Official Community Plan |
18
Figure 2.3 Population Change 2011-2021 (Source: Statistics Canada)
Figure 2.4 Age Distribution 2011 - 2021 (Source: Statistics Canada)
District of Oak Bay - Official Community Plan | 19
Figure 2.5 Population over 55 Years (Source: Statistics Canada)
Figure 2.6 Median Household Income (Source: Statistics Canada)
District of Oak Bay - Official Community Plan |
20
Employment and Finances
Oak Bay's employment sector is comprised
of a mix of home-based workers (38% of Oak
Bay's population worked at home in 2021), local
businesses, and major institutions.
5%
20%
9%
2%
1%
4%
25%
14%
2%
2%
Art, culture, recreation
and sport
Sales and service
Trades, transport and
equipment operators
Natural resources,
agriculture and related
production
Manufacturing and
utilities
Oak Bay
CRD
4%
20%
9%
12%
17%
2%
17%
9%
9%
15%
Legislative and Senior
Management
Business, finance and
administration
Natural and applied
sciences
Health
Education, law and
social, community and
government services
Job Type Held by Oak Bay Residents Compared to the CRD
Figure 2.7 Job Type Comparison (Source: Statistics Canada 2021)
Oak Bay residents are significantly more likely
to work in occupations related to management,
business, finance, health and arts and culture
compared to the CRD, while they are less
represented in trades, manufacturing and sales and
service jobs.
District of Oak Bay - Official Community Plan | 21
Projections and Trends
Oak Bay's Interim Housing Needs Report (2024)
identifies 1,215 new homes are needed over the next
five years, and 3,761 homes over the next 20 years to
meet local housing needs.
Residents who have traditionally looked for single
detached housing - families with young children
in particular - are on the decline, likely due to the
rapidly rising cost of real estate relative to other
communities in the area. The population of young
people without families is also on the decline
because there are few affordable housing options
that would allow them to remain in the community.
Many of the multi-unit buildings in Oak Bay exclude
people under 55 years of age. Similarly, very little
suitable housing has been developed for people with
varying abilities looking for single-storey units and
buildings with elevators.
The only growing segment of the population is those
over 65, the demographic least likely to be looking
for the large, two storey single detached houses
that make up much of the community. So, there
is a growing mismatch between the people in the
community and the available housing stock.
This replacement process makes Oak Bay
incrementally less affordable. As the community
loses the diversity of different age and income
groups because there is no suitable housing for
them, Oak Bay will look and feel less and less like the
Oak Bay of the past. In other words, without change
in the housing stock, the community will change in
many other fundamental ways.
The size and characteristics of Oak Bay's future
population will be influenced by District policies,
particularly this OCP.
22
3. Climate Change
and Energy
District of Oak Bay - Official Community Plan | 23
How this chapter relates to the OCP Vision of
Community Health & Resilience:
- Enhancing health and well-being
- Improving air quality and reducing GHGs
- Reducing energy and infrastructure costs
- Reducing risks to lives and property
Overview
The Intergovernmental Panel on Climate Change
(IPCC) prepared its sixth assessment report in 2023.2
The report states that global anthropogenic (human-
made) greenhouse gas (GHG) emissions have
unequivocally caused global warming. Between 2010
and 2019, GHG emissions climbed 12%. This is higher
than in any previous decade on record. During this
time, the annual growth rate of emissions was 1.3%,
despite increasing mitigation efforts. The primary
drivers of the increase in GHGs during this period
were CO2 emissions from the burning of fossil fuels
from energy, industry, transport and buildings, which
accounted for approximately 79% of this increase.3
To address this increasingly acute challenge, the
IPCC calls on policymakers to take deep, rapid, and
sustained cuts in GHG emissions. The IPCC notes that
climate resilient development needs to prioritize risk
reduction, equity and justice and that reducing GHGs
is a complex task that will require collective action,
including a reassessment of the criteria and values
used in decision-making.
Since 2006, the Province of British Columbia has
recognized that local governments are vital partners
in reducing GHG emissions. The BC Climate Action
Charter, adopted in September 2007, called for BC
municipalities to voluntarily address climate change
by reducing GHG emissions.
2 IPCC was established by the United Nations Environment Programme (UNEP) and the World Meteorological Organization (WMO) in
1988.
3 https://www.ipcc.ch/report/ar6/syr/downloads/report/IPCC_AR6_SYR_SPM.pdf
4 http://www2.gov.bc.ca/gov/topic.page?id=60E1E7810BC145C6B6FC00EE31F41EC5&title=Climate%20Action%20Legislation#charter
5 https://www.bclaws.gov.bc.ca/civix/document/id/complete/statreg/07042_01
Goals included achieving carbon neutrality by
2012; actively measuring and reporting GHG
emissions; and creating compact, energy efficient
communities.4 Oak Bay signed the Charter. BC's Local
Government Act was amended in 2008 to require
all OCPs to set targets for GHG reduction, as well as
policies and actions to achieve the targets.
In 2018, the Province also passed the Climate Change
Accountability Act. The Act established the following
targets for the province as a whole: reduce GHG
emissions by at least 40% below 2007 levels by 2030,
60% by 2040, and 80% by 2050.5
Oak Bay is committed to addressing climate change
and energy in its quest to be a more sustainable
community. The District declared a climate
emergency and reports annually on progress toward
climate goals, including reporting on corporate
emissions through the Local Government Climate
Action Program (LGCAP).
This OCP includes the following provisions:
- Set a goal to reach net-zero greenhouse gas
emissions by 2050
- Encourage energy efficient land use planning
- Encourage efficient modes of transportation
- Improve the energy efficiency of buildings
- Educate and engage residents and businesses
Climate Change and Energy
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District of Oak Bay - Official Community Plan |
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The District's Climate Action program includes
support and guidance for climate-friendly
homes, engaging local residents, and improving
infrastructure to encourage more sustainable
transportation.
Oak Bay recognizes the importance of working
with the CRD, the South Island, and the rest of the
province in planning for climate change adaptation
and mitigation.
Climate change mitigation (reducing greenhouse
gas emissions) and climate change adaptation
(preparing for the effects of a changing climate)
are related, and both are important for local
government. However, they serve different ends;
climate change adaptation is about dealing with the
problems created by climate change, and climate
change mitigation is about not making the problem
worse. The goal of adaptation, much of which can
be addressed through environmental policy, is to
reduce vulnerability and risk associated with climate
change. Many approaches to adaptation increase
overall community resiliency and have multiple
benefits.
Climate Change Mitigation
There are two primary methods through which
municipalities can reduce GHG emissions - through
community land use planning that results in less
community energy consumption (primarily from
transportation and buildings), and through reducing
GHGs associated with corporate operations.
The Capital Regional District has developed a Climate
Action Strategy in line with the Intergovernmental
Panel on Climate Change modelled pathways to limit
warming to a 1.5°C change during this century. It also
sets a shorter-term target to reduce GHG emissions
by 68% from 2007 levels by 2038.6
The CRD also produces GHG reduction progress
reports for each member municipality. In 2007, the
Province of BC Ministry of Environment launched a
GHG reporting system called the Community Energy
and Emissions Inventory (CEEI). This tool provides
inventories of municipal energy consumption and
GHG emissions estimates for three key sectors:
on-road transportation, buildings and solid waste.
The table below compares Oak Bay's GHG emissions
sources in 2007 (base year), 2010 and 2022, the most
recent year for which data is available.
Source
2007 tCO2e (% total)
2022 tCO2e (% total)
Change 2007 to 2022
Residential Buildings
24,070 (27%)
21,678 (29%)
-9.9%
Commercial and Industrial
Buildings
7,568 (8%)
10,762 (14%)
+42.2%
On-road transportation
40,679 (45%)
28,343 (38%)
-30.3%
Off-Road Transportation
6,520 (7%)
6,149 (8%)
-5.7%
Waste
7,781 (9%)
1,964 (3%)
-74.8%
Industrial Process and
Product Use
3,690 (4%)
6,089 (8%)
+65.0%
TOTAL
90,308
74,985
-17%
Figure 3.1 GHG Emissions for District of Oak Bay (2007 and 2022)7
6 https://www.crd.ca/media/file/climate-action-2024-progress-reportpdf
7 Capital Region District - Municipalities and Electoral Areas 2007 Base Year and 2022 Reporting Year Energy & GHG Emissions Inventory
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District of Oak Bay - Official Community Plan | 25
According to the most recent CRD progress report,
Oak Bay produced 74,985 tonnes of CO2 from all
sources in 2022, down from 90,308 tonnes in 2007.
This represents a reduction of 17% which is a
significant step in the right direction. In 2022, Oak
Bay's output equaled approximately 3.83 tonnes of
CO per capita, compared to 4.91 tonnes of CO per
capita in 2007, a reduction of 22.1%.
In general, Oak Bay has a relatively energy efficient
land use form due to the compactness of the
community. The District is fairly walkable with
commercial centres available to meet most everyday
needs. Transportation emissions for those living
within the community are also less on average than
for most communities. However, significant work
remains for Oak Bay (and all other governments) to
reach its long target of net zero carbon by 2050.
However, GHG emissions modelling and forecasting
completed as part of the OCP update shows that
while improvements in building efficiency and
vehicle electrification are reducing Oak Bay's
emissions, significant work remains for Oak Bay to
reach its long-term target of net zero carbon by 2050.
This work will include deep building energy retrofits
to reduce the emissions from existing buildings,
vehicle charging infrastructure to support continued
electrification of vehicles and planning for more
complete communities to encourage low carbon
modes of transportation.
Climate Change Adaptation
The following are the potential manifestations of
climate change in Oak Bay:
- increased climate variation
- more frequent and intense storms
- increased temperatures
- longer dry season
- sea level rise and flooding
These changes have the potential to affect
biodiversity, hydrology, infrastructure, public safety
and land uses, resulting in environmental, social
and economic impacts. Some examples of potential
climate change impacts in Oak Bay include the
following:
- damage to property, including residential and
commercial buildings, infrastructure, parks, and
the urban forest, from strong winds, flooding
and/or erosion (some specific examples include
foreshore erosion, road damage, and sewage
back-up)
- decrease in biodiversity and ecosystem functions
due to warmer, drier summer weather and/or
scouring of watercourses from intense rains
- seasonal water shortages
- adverse health impacts in vulnerable populations
due to increased incidence and intensity of heat
waves
- increased risk of wildfire
Some of the primary climate change adaptation
strategies that can address the potential impacts
include the following:
- protecting the quantity and quality (ecological
health and biodiversity) of natural areas
- rainwater management to slow runoff, decrease
erosion and mitigate reductions in creek base
flows
- protecting and enhancing the tree canopy
- conserving water and energy
The most widely used definition for climate
change adaptation is "adjustment in natural or
human systems in response to actual or expected
climatic stimuli or their effects, which moderates
harm or exploits beneficial opportunities."
Source: Intergovernmental Panel on Climate
Change
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26
OCP Climate Change and Energy
Measures
The objectives and policies in this section provide
high-level direction on climate change and energy,
focusing on District operations and collaboration
with other jurisdictions. Objectives and policies
throughout this OCP pertain to climate change
adaptation and mitigation measures. Figure 3.1 lists
the key related topics and policies with references to
the OCP section.
3.1. Climate Change and
Energy Objectives
The climate change and energy objectives of the OCP
are as follows:
1. Continue to work towards the established target
of net zero greenhouse gas emissions by 2050.
2. Work towards deep emission reductions focused
on the personal transportation and buildings
sectors.
3. Integrate considerations related to climate
change and energy into relevant municipal
procedures and decision-making.
4. Monitor and manage community energy
consumption and generation to minimize
greenhouse gas emissions.
5. Conduct climate change adaptation planning to
reduce future impacts on public health, property
and the natural environment.
6. Make residents aware of the risks of climate
change where applicable and encourage
measures to reduce risks.
7. Participate in planning, education and
community engagement related to climate
change and energy, encouraging conservation of
water and energy, and reduction of GHGs
Topic
OCP Section
Protection and enhancement
of nature and environmental
resources, biodiversity
Natural Environment,
DPAs
Urban forest
Natural Environment,
Built Environment, DPAs
Parks and green space for
residents
Parks and Open Space
Clean air and water
Natural Environment,
Transportation, Utilities
and Services
Low impact development
- stormwater/ rainwater
management
Built Environment,
Utilities and Services
Sustainable buildings, energy
conservation, reduction in
energy costs
Built Environment, DPAs
Shopping and services close to
home
Commercial Mixed Use
Recreation amenities close to
home
Recreation
Property risk management, sea
level rise
Watercourses and
Shorelines DPAs,
Hazards DPA
Active transportation and transit Transportation
Urban food production
Parks and Open Space
Shoreline management
Utilities and Services
Waste management and waste
reduction
Utilities and Services
Water conservation
Built Environment,
Utilities and Services
Wildfire protection
Built Environment
Figure 3.2 Climate Change Adaptation and Mitigation OCP Sections
ATTACHMENT 1
District of Oak Bay - Official Community Plan | 27
3.2. Climate Change and
Energy Policies
The climate change and energy policies and actions
of the OCP are as follows:
CCE1. Set a long-term goal to reach net-zero
greenhouse gas (GHG) emissions by 2050.
Create specific targets for emissions from
buildings, on-road transportation and waste
through a Climate Action Plan.
CCE2. Review municipal policies and procedures,
and integrate considerations related to
climate change and energy where applicable.
CCE3. Review and assess the District's greenhouse
gas emissions and climate change mitigation
measures on a regular basis, and make
changes as needed to improve results.
CCE4. Manage community energy generation and
consumption, and encourage conservation
and efficiency, diversification of supply,
renewable energy and low carbon fuels.
CCE5. Provide regular messaging to the community
on waste reduction, water and energy
conservation, and reduction of greenhouse
gas emissions.
CCE6. Encourage the use of green building
technologies such as solar panels,
geothermal energy and other emerging
systems.
CCE7. Demonstrate leadership in climate action by
reducing emissions from District operations.
CCE8. Enhance partnerships with federal,
provincial, regional and local governments,
other public agencies, Songhees Nation
and Esquimalt Nations, community
organizations, and businesses for the
efficient and effective coordination of
climate change and energy resiliency plans,
policies and initiatives including greenhouse
gas reporting and risk and vulnerability
assessment of local climate change impacts.
CCE9. Work with the CRD as they assume a
leadership role in the coordination and
integration of regional and local climate
change mitigation and adaptation planning.
Encourage the CRD to provide information
and tools to reduce redundancy and harness
efficiencies among municipalities.
CCE10. Encourage Multi Unit Residential and Mixed-
Use developments to undertake compost
collection and soft plastics collection.
CCE11. Continue to explore enhanced recycling
options for currently exempt items such as
styrofoam and soft plastics.
CCE12. Require new development to meet the BC
Zero Carbon Step Code, and encourage the
use of building materials and processes
that produce fewer emissions to reduce the
climate impact of construction.
CCE13. Encourage resilient buildings that employ
localized solutions and systems that can
better withstand disruptions caused by
extreme weather, including for energy, air
quality and water supply and conveyance.
CCE14. Explore incentive programs or partnerships,
like grants, tax exemptions, to encourage
building retrofits and help property owners
reduce emissions from older buildings.
CCE15. Require plans and documentation to reduce
construction waste during demolitions. This
includes salvaging valuable materials like
old-growth wood.
CCE16. Support efforts to reduce greenhouse gas
emissions associated with transportation
including encouragement for the adoption
of electric vehicles and by encouraging
integrated land use and transportation
planning that reduce trip lengths and
supports a shift in travel modes towards low
carbon forms of transportation.
ATTACHMENT 1
District of Oak Bay - Official Community Plan | 28
4. Natural
Environment
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District of Oak Bay - Official Community Plan | 29
Oak Bay is located within the Coastal Douglas-
fir biogeoclimatic zone, which is the most at-
risk biogeoclimatic zone in BC. As such, this
biogeoclimatic zone contains many ecosystem
types and species that have almost entirely
disappeared, including Garry oaks and their
associated ecosystem. For example, even in
the past decade, the population of one globally
endangered species Victoria's Owl-clover (Castilleja
victoriae), has been lost from Oak Bay (reducing
the number of populations in the world from four
to three). Oak Bay has the highest concentration
of rare/endangered species in Canada, and it is
important from an ecological perspective that Oak
Bay protects the health of these ecosystems, the
most outstanding of which are in Uplands Park.
The CRD is home to many distinct plant and animal
species, almost 100 of which are classified as "red"
status by the Province - extirpated, endangered,
or threatened within BC. A large number of these
species are found in Oak Bay. There is broad
support for the conservation of rare species in the
community, and the federal Species at Risk Act
reinforces the importance of this.
How this chapter relates to the OCP Vision of
Community Health & Resilience:
-
Protecting ecosystems and the urban forest
-
Improving air, water and soil quality
-
Reducing energy and infrastructure costs
-
Enhancing health and well-being
Natural Environment
Overview
Oak Bay is characterized by a spectacular setting and
rich natural environment that includes the ocean
shoreline, creeks, the Garry oak and associated
ecosystems, other environmentally sensitive habitats,
trees, parks, and green space (Figure 4.1). Such
features offer many environmental benefits, including
cleansing of air and water, support for fish and wildlife
species, and provision of habitats for rare species, all of
which are components of climate change adaptation.
Natural features also form the core of Oak Bay's
identity, and they are fundamental to the desirability
of Oak Bay as a place to live and a destination to
visit. The community places high value on the natural
environment and recognizes that environmental
conservation, with public and private stewardship,
are core elements of community sustainability.
Because of the wealth of environmental resources and
community interest, there are excellent opportunities
for environmental education, some of which have been
achieved through interpretive signs, maps, brochures
and the Native Plant Garden. Oak Bay has a committed
community of volunteers who promote and participate
in stewardship efforts such as management of invasive
species.
Oak Bay's topography is low lying (generally under 4
metres in elevation) along most of the shoreline and
in the area between Oak Bay Marina and McNeill Bay
(Figure 4.2). The terrain is punctuated with knoll-like
formations in the southwest around Walbran Park, and
at Anderson Hill. The northwest portion of Oak Bay
is higher in elevation, rising to over 70 metres in the
Henderson area.
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30
Figure 4.1 Map of Ecological Systems
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District of Oak Bay - Official Community Plan | 31
Figure 4.2 Elevation Map
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32
The District's natural environment faces significant
challenges. Concerns include invasive species,
tree removal, inappropriate tree pruning, planting
inappropriate species, increased impervious areas,
foreshore erosion, and climate change. Sound
planning, policies and practices are needed to
protect and enhance a vibrant natural environment
for current and future generations.
Oak Bay has taken significant strides to protect its
natural environment. Some initiatives
include the following:
-
Urban Forest Management Strategy
-
Tree Protection Bylaw
-
Development Permit Guidelines
-
Municipal tree planting and operations work by
staff on the urban forest
-
Participation in the CRD Regional Sustainability
Strategy, support of the Bowker Creek Blueprint,
and partners in the Capital Region Invasive
Species Partnership, CRD's Integrated Watershed
Management Program and Inter Municipal Group
-
Oak Bay Heritage Plan (2013), in which the
natural heritage of the community plays a key
role
Engagement Insights
Protecting and enhancing the natural environment
was a key theme throughout the OCP engagement
process. We heard about the importance of tree
protection, particularly the Garry oak ecosystem,
as well as preserving greenspaces, biodiversity and
wildlife. Participants often expressed a desire to
strengthen protections for waterways, creeks, and
the ocean shoreline.
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District of Oak Bay - Official Community Plan | 33
The Urban Forest
Oak Bay has a spectacular urban forest that is a
prominent feature of the community. In addition to
including many Garry oaks, a flagship species, the
urban forest is extensive.
A 2017 analysis of Oak Bay's tree canopy conducted
as part of the Urban Forest Management Strategy
(Diamondhead, 2017) indicated that the District
has a tree canopy of 33%. American Forests,
an organization that supports urban forestry,
recommends a municipal tree canopy of 40% for
this region (Pacific Northwest) to realize the multiple
benefits offered by trees. Very few communities
achieve that target. For example, Vancouver's tree
canopy is 23% in 2022, and Surrey's was 26% in 2020.
The relatively low density of development in Oak Bay
has likely been a contributing factor, because in most
municipalities the tree canopy decreases as urban
density increases. The decline in other communities
is also partly a result of minimal attention to the tree
canopy during development processes.
In 2017, the District undertook an Urban Forest
Management Strategy. An Urban Forest Strategy is
a long-term, strategic plan to achieve a sustainable
urban forest by conserving the tree canopy,
enhancing the extent and the health of the urban
forest, and increasing community understanding and
support for the urban forest.
The Strategy indicates Oak Bay's tree canopy cover
has not significantly decreased over the last decade,
from 35% in 2002 to 33% in 2015. Analysis shows
removal of trees during this time were occurring at a
higher rate on private lands than on public lands.
A healthy urban forest offers many benefits, assisting
with climate adaptation, temperature moderation,
energy use, air quality, stormwater management,
water quality, wildlife, biodiversity, real estate
An urban tree canopy "is the layer of leaves,
branches, and stems of trees that cover the
ground when viewed from above."
values, business viability, individual and community
well-being, and human health. For example, trees
sequester carbon, intercept stormwater runoff, and
filter pollution from the air and water.
Oak Bay, like many other communities, has a Tree
Protection Bylaw. The bylaw has some strong
points, such as its focus on native trees and Garry
oaks, identification of "significant" trees, and the
requirement for a security deposit to cover planting,
care and maintenance of replacement trees. There
are several ways in which the bylaw could be
stronger, e.g., changing the definition of "protected"
tree to include all trees over 10 centimetres dbh
(diameter at breast height) rather than the current
60 centimetres for trees that are not native,
increasing the size of replacement trees, identifying
the value of cash provided in lieu of replacement
tree planting and including tree canopy targets for
multi-unit residential zones. The bylaw may also
warrant review of the success of replacement trees
and consideration of expanding the species list of
replacement trees.
Rainwater Management
The cumulative effects of increasing impervious
area in a watershed, combined with loss of riparian
corridor integrity, alter the natural hydrology and
impact stream corridor ecology. The resulting
increase in runoff volume causes watercourse
erosion and progressive degradation of the channel
cross-section. The decrease in infiltration (due
to replacement of soil and vegetation with hard
surfaces) can also have impacts on fish because it
reduces the slow, constant groundwater supply that
keeps streams flowing in dry weather. This can lead
to water levels that are inadequate to provide fish
with access to their spawning areas, and can even
cause streams to dry up in the summer.
The CRD's Land Cover Mapping study (2017 / 2019)
looked at changes to impervious surfaces in the
region. The study identified 323.2 ha of lands (30.8%)
as impervious surface in 2019, marking a -0.7%
difference from 2011 to 2019.
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34
The term "rainwater management" was coined to
differentiate the past practices that concentrated
upon the drainage system response to storms,
and current emphasis on the needs of the aquatic
environment. The rainwater management approach
allows one to directly connect rainwater runoff in the
urban landscape with the impacts to a stream, and
to identify the mitigation methods needed to restore
the natural water balance in the stream.
"Low impact development" has been coined
as the term for these mitigation methods. Low
impact development involves landscape-based
solutions that focus on rainwater infiltration, such
as permeable landscapes with enhanced growing
medium, rain gardens, bioswales, green roofs,
and infiltration pits or tanks. Where possible, roof
leaders are disconnected so that water falling on
the roof is absorbed within the landscape rather
than flowing directly into storm sewers. Low impact
development helps to achieve a variety of objectives
encompassing both the site and watershed scales in
the urban environment.
A model showed that rainwater management
features such as rain gardens, green roofs, and
enhanced topsoil could effectively address a
projected 22% increase in precipitation due to
climate change.
Source: Chris Jensen, Climate Change Adaptation,
Using Low Impact Development to Mitigate Future
Flooding, Pacific Institute for Climate Solutions
Seminar, September 2010. See also Jensen - Rain to
Resource Presentation October 2010 Kelowna BC
Creeks and Watersheds
Oak Bay has two creeks; Bowker Creek and Hobbs
Creek. Creeks and their associated riparian areas
are regulated in BC by the provincial Riparian Areas
Protection Regulation. Hobbs Creek is a relatively
short creek, the headwaters of which originate in
Oak Bay before flowing through the UVic campus
into Saanich.
The Bowker Creek watershed is one of the most
highly urbanized major watersheds in the CRD. From
the headwaters near the University of Victoria to the
outlet at Oak Bay, relatively little of the watershed
remains undeveloped. Prior to agricultural and
urban development, Bowker Creek was an open
water feature, winding its way to the ocean. The
main channels of Bowker Creek are eight kilometres
in length, and today only 2.5 kilometres remain
open. The rest of the creek flows underground
through pipes and culverts.
Much of Bowker Creek flows as an open creek
within Oak Bay, the main exceptions being where
it flows under the tennis bubble at the Oak Bay
Recreation Centre and under Fireman's Park. Some
of the private properties along Bowker Creek extend
into or across the creek. When the ownership of
these properties are transferred, there may be an
opportunity for the District to acquire the creek bed.
Because so much of the area has been developed,
the Bowker Creek watershed functions much
differently from one in a natural, undisturbed setting.
Although the watershed may never be restored to an
entirely natural state, some natural characteristics
remain that can be protected and enhanced. In the
absence of a plan that identifies the possibilities
and presents specific actions, the existing urban
development and the pressure for redevelopment
will continue without regard for the potential for
Bowker Creek to become a cherished asset, linking
communities across the three municipalities.
The CRD's Bowker Creek Watershed Master Plan and
Bowker Creek Blueprint establish a direction and
strategies for this area, the latter including a 100-
Year Action Plan for watershed restoration, which
is currently undergoing its first update since it was
developed in 2011.
Daylighting a creek involves removal of culverts
or pipes into which a stream was previously
diverted and reinstating the creek into an
above-ground channel. Daylighting is intended
to restore a creek to a more natural state and to
improve the riparian environment.
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Riparian areas are the areas bordering on
streams, lakes, and wetlands that link water to
land. The blend of streambed, water, trees, shrubs
and grasses directly influences and provides fish
habitat. Protecting this riparian fish habitat, while
facilitating urban development that exhibits high
standards of environmental stewardship, is a
priority for the Government of British Columbia.
Good quality streamside habitat is essential for
ensuring healthy fish populations.
The Riparian Areas Regulation (RAR), enacted
under Section 12 of the Fish Protection Act in
July 2004, calls on local governments to protect
riparian areas during residential, commercial,
and industrial development by ensuring that
proposed activities are subject to a science
based assessment conducted by a Qualified
Environmental Professional (QEP).
Ocean Shoreline
Oak Bay's shoreline offers biologically rich and
diverse habitat for species such as endangered
Southern Resident Orcas, other marine mammals
(seals, sea lions, otters), waterfowl (oyster catchers,
cormorants, diverse ducks, Pacific Great Blue Heron),
raptors (bald eagles), shellfish (clams), and smaller
marine creatures (decorator crabs, lined chitons,
tidepool sculpins, tidepool shrimp). All marine
waters along the oceanfront are within the Victoria
Harbour Migratory Bird Sanctuary. There are also
two Ecological Reserves (Oak Bay Islands, Trial
Islands), three Rockfish Conservation Areas, and
Discovery Island Marine Provincial Park.
It is very important that the ocean shoreline remain
stable and environmentally healthy. Instability can
lead to erosion and subsidence, which can affect
property values, vegetation, and water quality. Rising
sea levels and flooding related to climate change are
a potential threat to the stability and environmental
values of the shoreline, and to residential properties
and municipal infrastructure. A Development Permit
Area to protect shorelines is included as part of
this OCP. Private docks are not currently allowed
in Oak Bay. Despite this, some docks have been
built within Uplands without District approval or
foreshore leases. The availability of moorage in Oak
Bay at one marina and a yacht club, combined with
the environmental sensitivity of the shoreline and
foreshore, make it difficult to justify any changes to
this prohibition.
Air Quality and Quiet Environment
Maintaining and enhancing the quality of air and
managing noise levels associated with human
activity are also considerations that relate to the
natural environment. Policies related to air quality
are included in Section 3 Climate Change and Energy.
The District already has an Anti-Noise Bylaw.
4.1. Natural Environment
Objectives
The natural environment objectives of the OCP are
as follows:
1. Protect and restore native ecosystems, including
terrestrial, riparian and aquatic habitats for
wildlife, vegetation, and rare and endangered
species, on public land and encourage similar
initiatives on private land.
2. Integrate environmental considerations into
planning and design processes to enhance
community sustainability and environmental
protection.
3. Encourage and support public awareness and
education regarding the natural environment.
4. Protect and enhance the urban forest, including
Garry oaks with a target tree canopy coverage of
40%.
5. Encourage and promote environmental
stewardship on private property and public land.
6. Conserve and manage the shoreline to protect its
environmental integrity and values.
7. Protect air quality and a relatively quiet urban
environment.
8. Encourage and support environmental
monitoring.
9. Encourage green space and gardens on private
property.
ATTACHMENT 1
District of Oak Bay - Official Community Plan |
36
4.2. Natural Environment
Policies
The natural environment policies of the OCP are as
follows:
General Policies
NE1.
Work with other organizations on initiatives
that support public awareness and
education regarding the characteristics,
values and benefits of the natural
environment and ways to protect it.
NE2.
Encourage and support stewardship
activities that involve environmental
restoration and enhancement.
NE3.
Encourage consideration of sensitive and
rare ecosystems, and rare, threatened and
endangered species, in parks and on private
land.
NE4.
Collaborate with other levels of government
and community organizations on
environmental monitoring in relation
to climate change and other impacts on
natural environments.
NE5.
Protect sensitive ecosystems through
the development process. Adjust the
Development Cost Charge (DCC) Bylaw
to provide incentives for low impact
development near sensitive ecosystems and
expand Amenity Cost Charge (ACC) criteria
to fund or construct additional greenways,
park improvements, or daylighting
initiatives.
NE6.
Facilitate wildlife movement and habitat
protection by maintaining and enhancing
wildlife corridors through parks, open
spaces and riparian areas.
The Urban Forest
NE7.
Protect and grow the tree canopy in
Oak Bay--home to Canada's largest
urban population of Garry oak trees.
Increase canopy coverage from 33% to
approximately 40% by 2045, as outlined in
the Urban Forest Management Strategy.
NE8.
Require development applications to
provide information related to existing
trees and trees to be retained (see Section
7.0 Development Approval Information
Required).
NE9.
Encourage flexible approaches to the siting
of buildings and paved areas in order to
protect existing trees.
NE10. Maintain an effective, up to date Tree
Protection Bylaw.
NE11. Manage the urban forest on all public lands
to improve its health, including the following
measures where applicable:
-
Care for trees, balancing risk
management and danger from trees with
the need for a healthy tree canopy.
-
Remove invasive species, with the
assistance of stewardship groups.
-
Plant trees and shrubs, with a focus on
native species where appropriate.
-
Naturalize portions of public lands where
appropriate.
Naturalizing essentially means letting nature
have more control. It involves letting native
meadow species grow, allowing shrubs and
trees to establish themselves, and restricting
maintenance to activities such as removal of
invasive species.
Rainwater Management
NE12. Prepare a Rainwater Management Bylaw that
requires low impact development practices
to increase onsite retention and infiltration
(absorption) of rainwater to reduce the
effective impervious area in the watershed.
Apply the Rainwater Management Bylaw
to all development applications, including
OCP amendment, rezoning, subdivision,
development permit and building permit
applications.
ATTACHMENT 1
District of Oak Bay - Official Community Plan | 37
Consider the following provisions in the Rainwater
Management Bylaw:
-
Encourage the disconnection of roof leaders
and the installation of infiltration areas that
accommodate roof runoff where possible
without posing risks of flooding homes or
adjacent properties
-
Maximize the extent of landscaped areas on site
with absorbent soils (preferably a minimum of
20 centimetres deep) and minimize the extent
of impervious surfaces to increase the natural
infiltration of rainwater and to provide a more
natural or landscaped character
-
Use permeable materials for paved areas where
possible, e.g., permeable pavers, permeable
asphalt or concrete, decks, reinforced grass
-
Consider the use of bioswales, rain gardens,
and other design techniques that allow greater
infiltration of water where possible, including
within and around parking areas
-
Regulate the maximum extent of impervious
surfaces on a lot for different land uses
-
Encourage the collection and storage of
rainwater for irrigation
Creeks
NE13. Explore opportunities for the District to
acquire the Bowker Creek bed and adjacent
slopes as options arise through changing
ownership.
NE14. Support restoration efforts for the Bowker
Creek watershed through guidelines
established in the updated Bowker Creek
Blueprint and the Watercourse DPA,
including daylighting parts of the creek,
creating greenway corridors, improving
habitat restoration and native planting,
monitoring and assessment, stormwater
management and community stewardship.
Ocean Shoreline
NE15. Work with senior government to discourage
and, where appropriate, remove privately
owned walls and other built features along
the shoreline, especially where they extend
beyond private property onto the foreshore.
NE16. Continue to disallow private docks and work
with senior agencies to have unauthorized
private docks removed.
NE17. Provide information about the Green Shores
program to the community, focusing on
waterfront property owners.
NE18. Maintain and apply a Shoreline Development
Permit Area to guide development close
to the ocean shoreline in order to better
manage and protect the natural features
and ecological functions of the shoreline
ecosystem.
Green Shores is a BC initiative that promotes
sustainable use of coastal ecosystems through
planning and design that recognizes the
ecological features and functions. Green Shores
connects people with the shore environment,
delivers triple bottom line (environment, social
and economic) benefits, and recognizes that
site-specific, cost-effective solutions can only
be achieved by using an integrated design
approach. The Green Shores project includes a
rating and assessment tool to guide shoreline
development (based on the Green Building
model), design concepts for alternatives to
seawalls and rip rap for a range of shore types
and physical settings, support for planning
initiatives such as OCPs, case studies and an
outreach program.
ATTACHMENT 1
District of Oak Bay - Official Community Plan | 38
5. Community
Framework
ATTACHMENT 1
District of Oak Bay - Official Community Plan | 39
5.1. Land Use
How this chapter relates to the OCP Vision of
Community Health & Resilience:
-
Retaining and enhancing our unique character
-
Encouraging a greater range of housing choice
-
Supporting viable commercial areas
-
Welcoming more residents and tourists
-
Enhancing walkability
Land Use History
Oak Bay is a community of neighbourhoods. These
neighbourhoods have evolved over time and what
we see today is the legacy of a long history of change.
Before European settlement, the land was occupied
and used in traditional ways by the Lək̓ ʷəŋən
peoples, known today as the Songhees Nation and
Esquimalt Nations. The first subdivision of land
involved the Hudson's Bay Company and over 1,100
acres at the Uplands, extending to Camosun College.
The first European settlers built farms and vacation
cottages in the late 19th century. By the early 1900s,
a housing boom was producing what are now known
as the major heritage houses, built for wealthier
people moving out of downtown Victoria.
Over the next 60 years, whole neighbourhoods
appeared in succession as large tracts of land were
developed - the farms of south and central Oak Bay,
Willows Fairgrounds, Lansdowne slope, and Uplands,
followed by the Henderson area in the north. Each
of these areas was developed for unique reasons,
at different times and with varied economic drivers.
Neighbourhoods built before the Depression often
included large and expensive houses in keeping
with the relative affluence of the times. During
the Depression and after the Second World War,
smaller, simpler houses were built on more modest
budgets and much of Oak Bay became a relatively
inexpensive working-class community, though it was
still affluent compared to Greater Victoria as a whole.
Along with the residential neighbourhoods,
commercial areas were developed to serve residents'
needs. Oak Bay's primary commercial centre is
known as "the Avenue", "the Village", or "Oak Bay
Village". Other tiers of commercial use take the form
of secondary villages, street-corner establishments,
and specialized commercial uses. Parks and open
space and a variety of community institutional uses
are also important contributors to Oak Bay's Land
Use Framework. These are described in more detail
in other sections of the OCP.
ATTACHMENT 1
District of Oak Bay - Official Community Plan |
40
Introduction to the Land Use
Framework
This section outlines the Land Use Framework that
guides future land use in Oak Bay (The Land Use
Framework map is shown as Schedule B).
The experience of the built environment in the
District is significantly affected by Victoria to the west
and Saanich to the north. It is ideal for neighbouring
municipalities to collaborate with each other to plan
transitions between their boundaries.
In accordance with the Local Government Act, the
following are noted:
-
As a fully urbanized municipality, there are no
sand and gravel deposits suitable for sand and
gravel extraction defined in this OCP
-
An OCP may designate areas where temporary
uses may be allowed, in which case they require
a temporary use permit. In Oak Bay, all areas
are designated as a temporary use permit area
where temporary use permits may be issued
-
There are no present or proposed industrial use
areas within Oak Bay
-
There are no proposed changes to the road
network at this time
Land Use Framework Objectives
The Land Use Framework objectives of the OCP are
as follows:
1. Accommodate Oak Bay's 20-year housing need
and provide a greater range of housing options
to address the needs identified in the District's
most recent Housing Needs Report.
2. Focus higher density forms of housing around
amenities and transit corridors to support
convenient access, community health and
resilience, and reduce GHG emissions.
3. Respect and enhance the character and identity
of neighbourhoods, commercial areas, and other
special locations within Oak Bay.
4. Allow more flexible uses in certain circumstances
and locations to encourage the organic
development of a more complete, sustainable
community.
5. Align with climate and sustainability goals to
support walkable neighbourhoods and protect
Oak Bay's tree canopy.
Land Use Framework Policies
The Land Use Framework policies of the OCP are as
follows:
CF1.
Use the Land Use Framework designations
and definitions below, and Schedule B: Land
Use Framework Map, to guide planning and
management of lands in Oak Bay:
1. The Oak Bay Village designation on
Schedule B consists of low-rise to mid-
rise single unit and multi-unit buildings
that accommodate ground-level
commercial retail uses such as shops,
services, restaurants, and entertainment;
with residential units, offices and
possible visitor accommodations
above. The Village has a well-defined
public realm characterized by attractive
sidewalks, street trees, and building
facades close to the sidewalk and
served by multiple transportation
modes including bike routes, paths,
parking and frequent transit. Buildings
from various decades contribute to the
Village's identity. Oak Bay Village is the
social centre of the community, a place
where people meet and participate in
many every-day and special purpose
activities. Oak Bay Avenue will remain
the village core as the primary mixed
use and pedestrian oriented street. The
District will provide more detailed urban
design direction for this area through the
completion of a village area plan.
2. The Neighbourhood Village designation
on Schedule B consists of mixed-use, low
to mid-rise buildings that accommodate
ground-level commercial uses such as
shops and services, entertainment, and
restaurants; with residential units, offices
and possible live/workspaces above.
ATTACHMENT 1
District of Oak Bay - Official Community Plan | 41
These villages are located along arterial
or collector roads, and served by bike
routes, paths or sidewalks, parking and
transit. Neighbourhood villages support
compact and complete communities
by creating smaller nodes of amenities
that are walkable for local residents. The
District will further review these areas
through a neighbourhood village area
planning process.
3. The Specialized Commercial
designation on Schedule B consists of
the marina, yacht club, and golf courses
that generate employment and serve
residents and tourists in a variety of
building forms, typically on larger sites
with space for vehicle circulation, off-
street parking, shipping and delivery.
4. The Resort Hotel designation on
Schedule B consists of the Oak Bay
Beach Hotel, a building complex that
serves residents and tourists with
accommodation, food services and
recreation, with associated vehicle
circulation, off-street parking, shipping
and delivery.
5. The Residential designation on
Schedule B consists primarily of
residential, and accessory uses in a
wide range of existing and infill ground-
oriented buildings, including single
detached, duplex, triplex, multiplexes,
accessory dwelling units, and secondary
suites. Small-scale commercial use on
the ground floor may be allowed within
this designation where the building is
located on corner lots, along a transit
route, or adjacent to major amenities
and would typically require a rezoning.
Townhouses and small lot subdivisions
may be allowed on larger lots and corner
lots fronting transit routes, subject to
rezoning.
6. The Townhouse Residential designation
on Schedule B consists primarily of
ground-oriented low-rise buildings
forming a row of attached houses with
each unit having its own private entrance
and units facing the street.
7. The Multi-Unit Residential 1
designation on Schedule B consists of
residential and accessory uses in low to
mid-rise multi-unit buildings, including
townhouses, row houses, low and
mid-rise apartments or condominiums,
with a residential character along the
streetscape featuring landscaping and
trees, typically served by sidewalks and
transit within 400-800 metres (a 5-10
minute walk). Small-scale commercial
use on the ground floor that is
compatible with the neighbourhood may
be allowed where the building is located
on a corner lot, along a transit route or
adjacent to major amenities.
8. The Multi-Unit Residential 2
designation on Schedule B consists of
residential uses in multi-unit buildings,
including low and mid-rise apartments
or condominiums, with landscaping and
trees. Small-scale commercial use on the
ground floor that is compatible with the
neighbourhood may be allowed where
the building is located on a corner lot,
along a transit route or adjacent to major
amenities.
9. The Uplands designation on Schedule
B consists primarily of residential, and
accessory uses in a wide range of existing
and infill ground-oriented buildings.
Uplands is a unique neighbourhood
planned in 1908 and guided by its own
design guidelines. The overall objectives
include retaining the residential park-
like setting, and street pattern, retaining
sightlines and view corridors, preserving
healthy tree canopies and encouraging
native species.
ATTACHMENT 1
District of Oak Bay - Official Community Plan |
42
10. The Community Institutional
designation on Schedule B consists
of public and private institutions,
including recreation centres, education
institutions, faith-based facilities, and
government buildings. These facilities
offer unique services and social
opportunities. Some have important
landscapes that contribute to the
community's character or recreation
opportunities. Residential use is
allowed as a secondary use within this
designation if the development includes
non-market or affordable housing units.
There are specific policies in this OCP
related to the University of Victoria
Institutional Lands.
11. The Parks and Open Space designation
on Schedule B consists of public parks
and open spaces that include natural
areas, outdoor recreation amenities
and trails. Parks contribute to the
environmental and social health of the
community.
12. The Cedar Hill Corner designation on
Schedule B refers to the University of
Victoria owned lands where a future
walkable, mixed-use neighbourhood is
envisioned. This would bring together
diverse types of housing with local
shops, services, cultural and recreational
amenities, university uses, as well as
open space in a compact village form
near a protected Mystic Vale natural
area. This site is intended to consist of
a range of uses, including institutional,
commercial, park and open space,
recreational, and residential in mid to
high-rise buildings. The District will work
to support the University of Victoria to
develop a comprehensive master plan
for this area that will detail a phased
approach to development. There are
specific policies in this OCP related to the
Cedar Hill Corner Lands.
CF2.
An OCP may designate areas where
temporary uses may be allowed, in which
case they require a Temporary Use Permit.
All designations within Oak Bay allow
Temporary Use Permits. This gives Council
the ability to permit uses not currently
included as a land use on a temporary basis
for up to 3 years. Temporary Use Permits
require that the land or buildings be returned
to the previous state when the permit expires
(refer to Section 7 for further detail).
CF3.
Use the built form, characteristics, and
intended land uses in Table 5.1 to guide land
use planning and management in Oak Bay.
13. The Special Study Area designation
identifies areas that require further
study and planning before site specific
land use changes will be considered.
The intention of this designation is
to better understand the impacts
and opportunities associated with
potential re-development of areas and
to consider establishing a development
framework for the area to inform future
redevelopment. Once further review has
been completed it is anticipated these
areas may be re-designated to one of
other land use designations.
ATTACHMENT 1
District of Oak Bay - Official Community Plan | 43
OCP Designation
Built Form
Characteristics
Intended Use
Oak Bay Village
Height: up to 4 storeys
(up to 6 storeys may
be considered with
appropriate amenities
and/or affordable
housing)
Low-rise to mid-rise
single-unit and multi-
unit buildings
-
Ground-oriented,
commercial uses with
entries and glazing
oriented to the sidewalk
-
One to six storey facades
along the street wall
-
Regularly spaced street
trees
-
Wide attractive sidewalks
on Oak Bay Avenue with
benches and plazas
-
Off-street parking below
grade or underground,
at the rear, or otherwise
screened
-
Commercial including
local and destination
retail, services,
entertainment and office
-
Residential uses allowed
above ground floor
-
Live/work
Neighbourhood
Village
Height: up to 4 storeys
(up to 6 storeys may
be considered with
appropriate amenities
and/or affordable
housing only at the
Neighbourhood
Village located at the
intersection of Cedar
Hill Cross Road and
Henderson Road)
Low-rise single or multi-
unit buildings
-
Ground-oriented, small-
scale commercial uses
reinforce the sidewalk
-
One to four storey
facades along the street
wall
-
Varied landscaping,
boulevards and street
trees
-
Off-street parking for
residents and business
occupants mainly at the
rear or side of buildings,
underground parking
is encouraged where
possible
-
Commercial including
local retail, services and
local serving office uses
-
Residential uses above
ground floor
-
Live/work
ATTACHMENT 1
District of Oak Bay - Official Community Plan |
44
OCP Designation
Built Form
Characteristics
Intended Use
Specialized
Commercial
Height: up to 3 storeys
Small to large floor-
plate commercial
buildings
-
Large lots with on-site
circulation, storage,
parking and materials
delivery and handling
-
Varied landscaping, with
landscape screening for
service areas
-
Commercial including
local and destination
retail, services, recreation
Resort Hotel
Height: up to 7 storeys
-
Designation to
accommodate large
hotels and resort-style
accommodation
-
Tourism,
accommodation, hotel
style condominiums
Residential
Height: up to 3 storeys
Ground-oriented
housing including
single detached,
duplexes, accessory
dwelling units, multi-
plexes and townhouses
up to 4 units total on a
lot.
Larger townhouse
projects may be
allowed through
rezoning.
-
A variety of lower density
infill homes with front
and rear yards
-
Houses oriented towards
streets or lanes
-
Varied landscaping and
trees
-
Off-street parking for
building residents
-
Infill Residential
-
Small-scale ground
floor commercial may
be considered on corner
lots, near transit stop,
or adjacent to major
amenities (requires a re-
zoning).
-
Larger/denser townhouse
projects may be allowed
on large sites and corner
lots through re-zoning.
ATTACHMENT 1
District of Oak Bay - Official Community Plan | 45
OCP Designation
Built Form
Characteristics
Intended Use
Townhouse
Residential
Height: up to 3 storeys
Low-rise townhouses,
row houses, multiplexes
(may exceed 4 units per
lot)
-
Townhouses and
multiplexes with
entrances facing the
street.
-
Varied landscaping
and trees, with large,
landscaped setbacks in
designated locations
-
Underground parking
is encouraged where
possible
-
Townhouse residential
-
Infill residential
-
Small-scale ground
floor commercial may
be considered on corner
lots, near a transit stop,
or adjacent to amenities
(requires a re-zoning).
-
Live/work
Multi-Unit
Residential 1
Height: up to 4 storeys
(up to 6 storeys may
be considered with
appropriate amenities
and/or affordable
housing)
Low-rise to mid-rise
single unit and multi-
unit buildings
-
Varied landscaping
and trees, with large,
landscaped setbacks in
designated locations
-
Off-street parking for
building residents and
their guests underground,
at the rear, or otherwise
screened.
-
Multi-unit Residential
-
Small-scale
(neighbourhood
compatible) commercial
use at ground floor
allowed in limited
locations including
corner lots or on transit
route.
Multi-Unit
Residential 2
Height limit: 12 storeys
Low-rise to mid-rise
multiunit residential
buildings
-
Varied landscaping
and trees, with large,
landscaped setbacks in
designated locations
-
Off-street parking for
building residents and
their guests underground,
at the rear, or otherwise
screened.
-
Multi-unit Residential
-
Small-scale
(neighbourhood
compatible) commercial
use at ground floor
allowed in limited
locations including
corner lots or on transit
route.
ATTACHMENT 1
District of Oak Bay - Official Community Plan |
46
OCP Designation
Built Form
Characteristics
Intended Use
Uplands
Stately and high quality
architecturally unique
residential buildings
in a landscaped "park-
like" setting
Ground-oriented
housing including single
detached, duplexes,
accessory dwelling
units, triplexes, and
multiplexes up to 4
units total on a lot.
-
Gently curved streets,
wide treed boulevards,
near and distant views,
some historic and
heritage houses, and
extensive landscaped
areas.
-
New development to
maintain and reinforce
its historic landscape,
subdivision layout and
streetscape design; to
ensure the sensitivity
of new development to
existing dwellings, the
tree canopy, biodiversity
and the Uplands design
guidelines.
-
Residential
Community
Institutional
Height: up to 3 storeys
(up to 6 storeys on
Camosun College,
UVic Institutional land
and the former Oak
Bay Lodge site located
at 2251 Cadboro Bay
Road)
-
Variable spaces and
buildings, including
landmark buildings,
that serve as local and
regional destinations
-
Government offices and
services
-
Recreation, education,
health, culture, faith-
based and assembly uses
-
Multi-unit residential
with affordable/
supportive housing as a
secondary use
Parks and Open
Space
Institutional buildings
of various heights
Small buildings and
structures that support
park uses
-
Natural and landscaped
parks and open space
with trails and recreation
amenities
-
Recreation
ATTACHMENT 1
District of Oak Bay - Official Community Plan | 47
OCP Designation
Built Form
Characteristics
Intended Use
Cedar Hill Corner
Area to be
comprehensively
planned and designed
There are specific
policies in this OCP
related to the Cedar Hill
Corner Lands
-
Characteristics will be
developed through a
master plan developed by
UVic in conjunction with
Oak Bay to include:
-
Diverse mix of residential
uses and densities
-
Environmental Protection
of Mystic Vale
-
Commercial and
recreational amenities
-
Affordable housing
-
Infrastructure analysis
-
Transportation Impact
Analysis
-
Multi-unit residential
-
Commercial
-
Institutional
-
Park/Open Space
Special Study Area
Larger sites and
(multi lot) areas to
be comprehensively
planned and designed
The Special Study Area
designation identifies sites
that require further study and
planning before site specific
land use changes will be
considered.
The intention of this
designation is to better
understand the impacts
and opportunities
associated with potential
re-development of sites and
to consider establishing a
development framework for
the area to inform future re-
development.
Once further review has been
completed it is anticipated
these sites are re-designated
to the appropriate land
use designations either by
individual development
applications or the District
initiating an amendment to
the OCP.
Temporary Use
Permits
N/A
The District designates
all areas of the District for
the purpose of allowing
Temporary Use Permits.
Temporary use permits are
considered on a case-by-case
basis to allow a variety of
temporary uses for a specific
time period (such as events,
pop up stores/ restaurants,
etc.) at the discretion of
Council.
Figure 5.1 Land Use Framework Provisions
ATTACHMENT 1
District of Oak Bay - Official Community Plan |
48
Home-based business, also known in some
communities as home occupation, is a business
or occupation conducted for gain in a dwelling
unit by the resident or residents. It involves
the use of part of a dwelling or part of an
accessory building for pursuits compatible
with a domestic household and is typically
subject to certain criteria such as: the use is
clearly secondary to the use of the dwelling
unit as a private residence; it does not change
the external character of the dwelling unit as a
private residence; it does not create or become
a public nuisance with respect to noise, traffic
or parking; there are no goods, wares or
merchandise offered or exposed for sale.
CF4.
The District has identified one or more
Special Study Areas on Schedule B. Special
Study Areas are sites that because of their
size, unique characteristics, importance
to the community and/or potential impact
if developed, have been identified by the
District as requiring additional consideration
and study prior to any land use change.
CF5.
A comprehensive planning process may
be required for proposals that change the
land use and/or increase density on larger
sites and multi lot areas in the District.
The planning process for a large site
redevelopment and re-zoning should include
consideration of the following information
and criteria:
- Transportation Impact Analysis
- Frontage improvements/road dedication
for active transportation or green
infrastructure
- Public access to the shoreline, preferably
a continuous public walkway, where
appropriate
- Protection and enhancement of the
shoreline ecology or other sensitive
ecosystems
- Protection of existing mature trees
and meeting Tree Canopy Targets for
replanting demonstrated through a Tree
Management Plan
- Geotechnical study for sea level rise,
tsunami risk and suitability of the ground
for development
- Servicing study to understand how
the site will be serviced including any
necessary upgrades
- Integration of environmental
considerations into the planning and
design of buildings to advance community
climate and ecological health goals
- Demonstration of a significant community
benefit including community amenities
and affordable housing contributions
CF6.
Allow parks, public utilities, community
services, paths/trails, open space, and
urban agriculture in all Land Use Framework
designations.
CF7.
Consider variations to the provisions in the
Land Use Framework, including height, built
form and density, without requiring an OCP
amendment, in circumstances including, but
not limited to, the following
- to achieve heritage conservation
objectives
- where significant community amenities
are being provided
- where below-market or non-market
housing units are provided
CF8.
Use the following criteria in the
consideration of potential community
amenities for a project:
- Size, location and character of the
proposed development, projected
population increase, and potential
impacts on community infrastructure
- Site characteristics including trees,
natural features, heritage and recreation
values and proximity to other sensitive
ecosystems or natural areas for protection
ATTACHMENT 1
District of Oak Bay - Official Community Plan | 49
- Affordable, rental or inclusive housing
potential, need with respect to the
project, and compatibility with the
proposed development
- Needs of the surrounding community for
trails, bike routes, community gathering
spaces or other amenities
CF9.
Consider the following as potential
community amenities for projects requiring a
rezoning:
- Rental, market or non-market affordable
housing (subject to a Housing Agreement
under S.483(5) of the Local Government
Act
- Housing suitable for seniors and/ or
those with physical or developmental
disabilities
- Dedication of land or building space for a
community institutional use such as a day
care, community meeting space, arts or
culture space, health service, community
garden, or transit shelter
- Protection and/or enhancement of large
trees or natural features
- Conservation and/or enhancement of
heritage property
- Public art
- Sidewalk, trail, path, road or bike route
improvements
- Provision of a trail or walkway
- Attractive paving, street trees and site
furniture
- Public parking spaces
CF10. Consider applying amenity zoning and/or
inclusionary zoning, per S.482.4 of the Local
Government Act, whereby the land density, in
the form of additional lots or dwelling units,
may be increased relative to the affordable
housing or community amenity provided.
CF11. Collaborate with Victoria and Saanich
regarding land use planning along the
west and north municipal boundaries,
respectively, and collaborate with the
CRD, University of Victoria, Camosun
College, School District 61 and other public
institutions on land use planning and its
interrelationship with transportation and
other regional matters.
CF12. Notwithstanding policies limiting building
height in the Land Use Designations in
CF3, where a building exists at the time
of adoption of this OCP and exceeds the
allowable number of storeys, the District may
consider rezonings to allow redevelopment
to the existing building height.
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5.2. Built Environment
How this chapter relates to the OCP Vision of
Community Health & Resilience:
-
Retaining our unique neighbourhood character
-
Supporting social gathering
-
Encouraging sustainable buildings
-
Respecting our neighbours
Overview
Oak Bay is a unique and special place composed
of locations and neighbourhoods with their own
character and identity. Oak Bay Village, Estevan,
Uplands, Willows Beach, and McNeill Bay are
examples of identifiable places. One approach
to retaining the character and identity of these
neighbourhoods is based on respecting the
context and a "sense of place". Sense of place is a
key concept in planning sustainable and resilient
communities. It recognizes the role that built form
and landscape play in defining our experience in
and relationship to an urban environment. This
in turn contributes to the social, economic and
environmental health of the community.
Retaining a sense of place does not mean resisting
change. Oak Bay's buildings and structures, the
"built environment" of the community, have
changed considerably over time. Architecture
evolves in response to community and residents'
needs, market demands, the evolution of design and
building technology, and economics. Oak Bay has
the opportunity to respect and celebrate the many
characteristics that make it unique, while integrating
new building forms that meet the needs of existing
and future residents.
Construction practices have evolved significantly
to prioritize the sustainability and resilience of
buildings and infrastructure. Today, it is standard to
address energy efficiency, resource conservation,
waste reduction, indoor environmental quality, and
the broader impacts of development on natural
systems. Oak Bay has recently adopted the BC
Zero Carbon Step Code, which establishes higher
performance standards for energy efficiency and
greenhouse gas reduction in new buildings.
Municipalities can regulate the built environment
through Development Permit Areas (DPAs) that
include guidelines for development form and
character in the OCP, and through the Zoning
Bylaw. DPA design guidelines can be provided
for all infill residential and multi-unit residential
development and for commercial, mixed use, and
industrial projects (see Section 8.3 Built Environment
Development Permit Areas).
Engagement Insights
Participants in the OCP engagement process
supported the protection of Oak Bay's existing
neighbourhood character through more detailed
residential design guidelines. Tree protection was
also a very important topic for residents when
considering new development.
Sense of place refers to those characteristics
that make a place special or unique, as well as
to those that foster a sense of authentic human
attachment and belonging. Places that exhibit
a strong sense of place have an identity and
character recognized immediately by a visitor
and valued deeply by residents.
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Built Environment Objectives
The built environment objectives of the OCP are as
follows:
1. Encourage all new development and
redevelopment to respect and enhance Oak
Bay's unique "sense of place" through sensitive
and innovative responses to existing form, scale,
and character, and to promote residents' health
and well-being.
2. Foster and strengthen social interaction
through the design of mixed use and multi-
unit residential development that includes
pedestrian-friendly design, complete
streetscapes and comfortable public spaces to sit
and gather.
3. Retain existing trees, other vegetation, natural
features and topography where possible as a
reflection of Oak Bay's character and for the
environmental values.
4. Encourage the conservation and stewardship
of streetscapes and neighbourhood character,
including historic buildings and structures, their
gardens and significant landscape features.
5. Encourage new development to include
sustainable building technologies.
Built Environment Policies
The built environment policies of the OCP are as
follows:
BE1.
Support development and redevelopment
that responds to and maintains the
unique social, cultural and environmental
characteristics of each neighbourhood.
BE2.
Encourage the design of complete and active
streets with new development projects to
provide access to safe and convenient multi-
modal transportation for residents of all ages
and abilities.
BE3.
Encourage the development and
redevelopment of public gathering places
such as plazas and landscaped seating areas
near activity-generating uses and mixed-use
developments.
BE4.
Ensure accessible design principles are
followed in public space and street design,
where appropriate, with consideration to
those with physical, sensory, or cognitive
disabilities.
BE5.
Support the conservation and rehabilitation
of existing heritage and character buildings.
BE6.
Encourage the design and construction of
sustainable and environmentally responsible
structures, buildings and infrastructure
that reduce demand for services, create
less waste, make efficient use of energy
and resources, create healthier living
environments, and minimize adverse impacts
on natural systems and resources. This can
be accomplished through methods such as
the following:
- innovative systems for heating, cooling
and hot water
- rainwater collection and infiltration
systems
- longer lasting construction methods and
materials
- deconstruction of buildings and recycling
or repurposing of building materials
where possible
BE7.
Require all new construction to meet the
highest emission levels of the BC Zero
Carbon Step Code, as outlined in the
Building and Plumbing Bylaw and its future
amendments. This includes:
- mandating full electrification for
space heating and domestic hot water
equipment in all new residential and
commercial buildings.
- integrating the Zero Carbon Step Code
alongside the BC Energy Step Code to
ensure both low operational emissions
and high energy efficiency.
- working with the building and
development community to ensure clear
and consistent expectations for meeting
high-performance energy standards.
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BE8.
Implement Mixed-Use and Multi-Unit
Residential DPA guidelines, and amendments
to other bylaws as appropriate, to:
- require light and noise mitigation to
be incorporated into the design of new
buildings along busy transportation
corridors to prevent conflicts, discomfort
and nuisance caused by traffic
- provide pedestrian-friendly design and
high-quality open spaces
- minimize disturbance of existing trees,
topographic features and landscaped
areas that contribute character and
quality to the streetscape in adherence
with Oak Bay's Tree Protection Bylaw
BE9.
Encourage the selection of lights for
reduced energy consumption and dark sky
considerations for all developments without
compromising light levels required for
pedestrian safety.
BE10. Encourage development near natural areas
to consider BC FireSmart wildfire protection
principles and management strategies.
BE11. Require larger development projects to
place utilities such as hydro and telephone
underground, and to repair or replace water
and sewer lines as needed, in the vicinity of
the project.
BE12. Given capacity limitations of the District's
Fire Department first response, single
egress stair (SES) designs in low- and mid-
rise buildings, although included in the
BC Building Code, cannot be protected as
envisioned in the Code and therefore may
not be supported in multi-unit residential
development.
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District of Oak Bay - Official Community Plan | 53
5.3. Housing
How this chapter relates to the OCP Vision of
Community Health & Resilience:
-
Providing housing options to reflect changing
needs of community members
-
Retaining neighbourhood character
-
Attracting more people and more diversity
-
Lowering average housing costs
Overview
The settlement that began in the 1850s is still
reflected in Oak Bay. About 15 percent of all
buildings in the District are over 100 years old
and over 80 percent of buildings are more than 50
years old. The result is an extraordinary diversity
of housing in existing neighbourhoods, with
houses from multiple decades on most blocks. This
contributes to the charm of Oak Bay's established
neighbourhoods.
Until the 1960s, Oak Bay's neighbourhoods were
predominantly made up of compact detached
houses on small to medium-sized lots. In the 1960s,
large tracts of land began to be developed in the
northern parts of the community, attracting an
increasingly affluent demographic to larger houses
spread out over larger lots. A significant boom
in multi-unit apartment construction was also
underway and continued through the 1970s and
1980s.
By the 1990s, most of the land in Oak Bay had been
built out, and construction shifted to replacement of
houses. Property values for single detached houses
rose faster than in neighbouring municipalities. By
the time the 1997 version of the OCP was written,
Oak Bay had started to call itself a "single-family
character" community despite the fact that almost
a third of its residents were living in multi-unit
buildings.
Engagement Insights
Participants in the 2025 OCP engagement process
shared the need for more affordable and diverse
housing options in Oak Bay, including rental units,
co-ops, family-friendly units, senior friendly and
accessible housing. There was also support for
tenant protections and the need to retain existing
housing stock. Overall, participants expressed a
desire for new housing to fit in with the existing
neighbourhood character.
Affordable and Inclusive Housing
Oak Bay has both a need for affordable and
inclusive housing, and a legal obligation to provide
effective policy guidance in the OCP to facilitate
such development. If the District is to become a
more sustainable and resilient community, Oak
Bay has to do much more than it has in the past to
provide a policy environment that responds to this
challenge. Being demanding in terms of good design
and construction will help to offset concerns about
"cheap" housing, but design standards must be
balanced with the overall cost of the end product.
Oak Bay has some affordable and inclusive (or
special needs) housing, mostly in the form of
multi-unit buildings, some of which are focused on
the needs of older adults. Secondary suites also
contribute to the affordable housing stock. However,
the availability of safe, affordable and inclusive
housing is low and trending lower. In Oak Bay, as in
the CRD more broadly, affordability is a significant
housing challenge. In 2021, 23.3% of households
reported spending 30% of more of their income on
shelter costs, including 45% of renter households
and 16% of owner households.
Oak Bay defines affordable housing as housing
that costs no more than 30 percent of gross
household income.
Inclusive housing is defined as housing that
supports the specific needs of seniors and/
or those with developmental or physical
disabilities.
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Oak Bay's Interim Housing Needs Report (2024)
details the District's anticipated housing need over
the next five and twenty years. The District needs to
accommodate 1,215 total new units in the next five
years and 3,761 new units over the next twenty years.
One of the significant gaps identified in the District's
housing need is the limited options for senior
residents who need to downsize, or access housing
supports. There is currently a lack of more compact
housing forms that would meet the needs of seniors
wanting to downsize from their single-detached
homes but stay in Oak Bay.
Students are also an important part of the
community in Oak Bay. The Housing Needs Report
(2020) found that postsecondary students are facing
significant housing challenges in the region and local
educational institutions, Camosun College and the
University of Victoria, report difficulty attracting and
retaining staff due to the lack of housing affordability
and availability.
Meeting diverse housing needs in any community
is a complex issue. Most urban communities in BC
and elsewhere are faced with similar challenges. As
property values continue to rise, it becomes ever
more difficult to meet the housing needs of everyone
who would like to live in a community.
Residential Neighbourhoods
Eighty percent (80%) of owner-occupied dwellings
in Oak Bay are single-detached dwellings. Oak Bay's
established neighbourhoods are highly valued by
residents ('Residential' designation in Schedule B).
The primary challenge in these neighbourhoods,
as noted previously, is that an increasingly small
segment of the population is able to afford to live
there. There are options for diversifying housing
in established neighbourhoods while retaining the
qualities that make these locations so attractive.
The District's Housing Action Program aims to
increase housing supply, create more diverse housing
choice and over time contribute to more affordable
housing.
In 2024, the District amended the Zoning Bylaw to
allow for small-scale infill housing on most lots. Infill
housing is ground-oriented housing typically built
at a similar scale to single-detached and duplex
housing, within existing neighbourhoods. There are
a number of other options for creative infill housing.
Oak Bay's wide range of lot sizes means that there
may be the potential for subdivision of larger lots
into multiple lots, while respecting the important
role that these lots have in the character of the
landscape and streetscape.
Between October 1, 2023, and September 30,
2025, 36 net new dwelling units have been granted
occupancy by the District, the majority of which were
secondary suites.
Secondary suites are also permitted in all residential
zones that allow single-family homes. These suites
help to fill a housing gap, while helping homeowners
bear the high cost of owning a single detached home.
The laneways in Oak Bay are significantly different
from those in other areas of the province. In many
other jurisdictions, laneways have been designed
and maintained in order to provide municipal
emergency services on a controlled basis. In Oak Bay,
laneways are not designed for fire engine or garbage
truck access and many have become pathways
and green spaces. The Fire Department does not
currently have access for fire-fighting purposes from
the existing laneways in the municipality based on
the fire-fighting access requirements pursuant to the
British Columbia Building Code. In addition, current
water supply infrastructure does not address nor
provide for fire hydrants in laneways.
Engagement Insights
Participants in the 2025 OCP engagement process
expressed broad support for increasing the diversity
of housing types in Oak Bay to better meet the
needs of seniors, families, students, and people
with varying incomes. Many supported options such
as townhomes, multiplexes, and rental or co-op
housing to expand affordability and choice, while
others emphasized that new housing should fit the
existing character and scale of neighbourhoods.
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Townhouse Residential
As Oak Bay evolves, there is a growing need for
housing options that provide more flexibility for
households of different sizes, ages, and incomes
while maintaining the established character of
neighbourhoods. Townhouse areas (Townhouse
Residential on Schedule B) offer a gentle increase in
density through ground-oriented housing forms that
support families, people looking to downsize, and
those seeking entry-level ownership opportunities.
These areas serve as an important transition
between higher-density multi-unit and mixed-use
developments and traditional single-detached
neighbourhoods, providing a more gradual
change in scale and form. Thoughtful design will
ensure new townhouse development contributes
positively to the streetscape and neighbourhood
character. Design guidelines emphasize high-quality
architecture, articulated facades, individual front
entries, and landscaping that complements the
surrounding built form, helping to integrate new
homes into Oak Bay's residential fabric.
Multi-Unit Residential
Adding housing options in established
neighbourhoods will only meet some of the changing
demand. Many people, particularly the elderly,
will be looking for other forms of housing such as
apartments in multi-unit buildings where they have
an opportunity to live on one level and conduct less
property maintenance.
There are opportunities to increase the number
of apartments and condominium units (Multi-
Unit Residential 1 and Multi-Unit Residential 2 in
Schedule B). As the villages and other commercial
areas redevelop, buildings with residential units on
the upper floors can enliven commercial areas and
provide housing that is conveniently located near
shops, transportation and amenities. Another key
opportunity is that some of the multi-unit buildings
constructed prior to the 1980s will be approaching
the end of their lifespans. Redevelopment of these
buildings may, in many cases, allow for expanding
the number of units and meeting a broader array of
housing needs.
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Uplands
A distinct and important neighbourhood in Oak Bay
is Uplands (Schedule B). Uplands was planned in
1907, by the Olmsted Brothers, America's leading
landscape architecture and town planning firm
of the day. It was developed as a residential park
to maintain the natural beauty and picturesque
setting in a unique suburban landscape. This was
achieved through the careful siting of houses, all
set against a framework of curving streets and large
lots, to take full advantage of ocean and mountain
views. A system of deed restrictions was introduced
to maintain single-family land use and to establish
minimum standards of value, height, and setbacks.
The special character of Uplands has been further
protected by provincial statute and municipal
bylaws, especially the Oak Bay Special Powers
Act (1935). The intent of this Act is to protect the
park-like design and development standards,
and to sustain the environmental integrity of
the neighbourhood. The trees in Uplands are an
important contributor to Oak Bay's tree canopy and
urban forest.
The Special Powers Act grants the District the
authority to regulate many aspects of the
neighbourhood that it is not allowed to regulate in
other areas of the community (which are regulated
by the Local Government Act and Community
Charter).
The Uplands Design Guidelines recognize the
unique historic and landscape character of the
neighbourhood and remain in effect as a distinct
framework separate from other design policies
in Oak Bay. They emphasize preserving mature
landscaping, generous setbacks, and architectural
consistency to maintain the area's established
garden character. Uplands will continue to be
governed by its own area-specific standards to
protect its heritage and form.
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Housing Objectives
The housing objectives of the OCP are as follows:
1. Accommodate 20 years of housing need by
increasing housing supply in strategic locations
nearby shops, transit and amenities.
2. Encourage and support a greater diversity of
housing forms and tenures that respond to needs
of all community members as they change over
time, including affordable and inclusive housing.
3. Develop new housing that integrates with the
character of existing neighbourhoods and
mitigates potential impacts such as tree loss,
parking, traffic, noise, and effects on other
properties.
4. Encourage and support the upgrading and
retrofitting of older and heritage houses.
5. Support the development of supportive housing
and community care facilities, preferably close to
community services and public transit.
6. Support the increased supply of affordable non-
market housing.
7. Support tenant protection and mitigate the
effects of displacement on tenants from
redevelopment.
Housing Policies
The housing policies of the OCP are as follows:
General Policies
H1.
Facilitate a greater supply of housing units to
meet current and future housing needs, as
identified in the 2024 Interim Housing Needs
Report:
-
Provide a growth capacity for 1,215
additional dwelling units to meet the
anticipated 5-year housing need (by
2029).
-
Provide a growth capacity for 3,761
additional dwelling units to meet the
anticipated 20-year housing need (by
2044).
-
Update the housing needs assessment
every 5 years in accordance with the
Local Government Act.
H2.
Update the District's development approvals
processes, with the goal of streamlining
procedures and improving departmental
systems to support the timely and efficient
delivery of new housing.
H3.
Regularly review and update a Housing
Needs Assessment for the District of Oak
Bay to inform updates to the housing targets
in this plan including both short- and long-
term housing demand and to inform specific
housing needs including rental, non-market,
family and accessible housing.
H4.
Encourage and support a range of housing
types, forms and tenures throughout the
community to meet the needs of diverse
incomes, lifestyles, ages and abilities.
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H5.
Encourage all residential development
and redevelopment projects to minimize
disturbance of existing trees, topographic
features and landscaped areas that
contribute character and quality to
the streetscape. Where these areas are
disturbed, encourage the installation of
new features and landscaped areas that
contribute to the streetscape and are
consistent with other well-developed
landscapes in the neighbourhood.
H6.
Prepare a Housing Strategy, identifying
opportunities to encourage and support
affordable and special needs housing for
the community including but not limited
to exploring the use of inclusionary zoning,
density bonusing, and other tools to advance
non-market housing options.
Affordable and Inclusive Housing
H7.
Promote a coordinated approach to
addressing housing issues and collaborate
with other local and senior governments,
Songhees Nation and Esquimalt Nation,
community groups, non-profit organizations,
faith-based groups, and the private sector to
plan, secure funding, and provide affordable
and inclusive housing.
H8.
Support innovative approaches to creating
affordable and inclusive housing including
market rental housing agreements, co-
housing, other forms of shared ownership,
inclusion of affordable/special needs units in
multi-unit developments, and mixed market
and non-market projects.
H9.
Encourage universal design within housing
units, and for access to housing units
internally and from the street, for units
intended for persons with developmental or
physical disabilities.
H10.
Consider incentives to lower housing
costs, such as permissive revitalization
tax exemptions (under Section 226 of the
Community Charter), where affordable or
inclusive housing will be provided.
H11.
Redevelopment of any building in Oak
Bay with four or more purpose-built rental
units should seek to replace, at minimum,
rental units with the same number of total
bedrooms as in the original development.
Strata conversions are generally not
supported when the vacancy rate as
provided by Canada Mortgage and Housing
Corporation for Greater Victoria is at 4 per
cent or lower for a period of two consecutive
years.
H12.
Encourage the development of rental
housing, including identified units
within multi-unit housing, potentially in
cooperation with the Capital Region Housing
Corporation, as a means of providing
affordable forms of housing, pursuant to
Section 877 (2) of the Local Government Act.
H13.
Revise development application procedures
to request a statement from the applicant
outlining what provisions have been made
regarding notice and relocation assistance
to existing tenants where a proposed
development would result in the loss of
rental, affordable or inclusive housing
and encourage some of the new units to
accommodate these residents.
H14.
Support the development and
implementation of a Tenant Relocation and
Protection Policy (TRPP) that provides clear,
consistent, and equitable standards for
assisting tenants affected by redevelopment,
including non-market and co-operative
housing.
H15.
Encourage the creation or use of Accessory
Dwelling Units (ADUs) as long-term,
secondary rental units.
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H16.
Encourage affordable and/or inclusive
housing projects to include some adaptable
housing and consider a minimum
requirement for accessible or adaptable
units for all new multi-unit developments as
part of a Housing Strategy.
H17.
Encourage buildings with commercial space
at street level in areas designated Mixed Use,
with residential and/or commercial uses
above.
H18.
Consider applying amenity zoning and/or
inclusionary zoning, per S.482.4 of the Local
Government Act, whereby the land density, in
the form of additional lots or dwelling units,
may be increased relative to the affordable
housing or community amenity provided.
H19.
Support Building Strata Conversions within
infill residential lots, particularly where
retention of an original primary residence or
heritage registered home is included.
Adaptable Housing refers to residential
dwelling units that are designed to allow
easy conversions or modifications that will
ensure that the units are physically accessible
to everyone and that occupants can age-in-
place as their ability levels change. CMHC has
guidebooks on this topic.
Universal Design involves designing products
and spaces so that they can be used by the
widest range of people possible. Universal
Design evolved from Accessible Design, a
design process that addresses the needs of
people with disabilities. Universal Design goes
further by recognizing that there is a wide
spectrum of human abilities. Everyone, even
the most able-bodied person, passes through
childhood, periods of temporary illness, injury
and old age. By designing for this human
diversity, we can create things that will be
easier for all people to use. Universal Design
makes things safer, easier and more convenient
for everyone.
Residential
H20.
Support the development of different
forms of infill housing in areas designated
as Residential on Schedule B, including
subdivision of larger lots, duplexes, triplexes,
multiplexes and accessory dwelling units.
H21.
Rezoning of lots in the Residential
designation may be supported in order to
allow for (fee simple) subdivision subject to
the following criteria being met:
- A S.219 covenant placed on title at the
expense of the developer may be required
to limit the proposed density to that
allowed prior to subdivision;
- The subdivision results in new street-
oriented development and;
- Generally consistent with the adjacent lot
pattern.
H22.
Rezoning of lots within the Residential
designation may be supported to allow for
the development of townhouses, with a
density greater than typically allowed, where
the lot meets the following criteria:
- Lots over 1,000m2 or corner lots (at the
intersection of two streets); and
- Lots fronting onto a BC transit bus route
Infill housing is ground-oriented housing
typically built at a similar scale to single-
detached housing, within an existing
neighbourhood. This consists of duplexes,
triplexes, and accessory dwelling units.
There are various ways that the criteria
and guidelines for infill housing can be
implemented, e.g., as a separate set of
guidelines, as requirements within the Zoning
Bylaw, as the basis for new zones (in which
case rezoning would not be required), or a
combination of these.
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H23.
The creation of panhandle lots through
subdivision or rezoning is discouraged.
H24.
Continue to promote infill housing through
implementation and regular review of the
District's Housing Action Program to focus
housing growth to support preservation of
natural lands and prevent carbon intensive
sprawl in the region.
H25.
Maintain an Infill Residential Development
Permit Area to regulate the form and
character of infill housing to ensure that
new infill housing fits into the character of
neighbourhoods.
Multi-Unit Residential
H26.
Maintain a Multi-Unit Residential
Development Permit Area to regulate the
form and character of multi-unit residential
development.
H27.
Encourage the development of multi-unit
residential redevelopment projects on lands
designated Multi-unit Residential 1 and
Multi-unit Residential 2 on Schedule B.
H28.
Allow commercial development on a portion
of the ground floor of multi-unit residential
projects in the Multi-Unit Residential 1
and Multi-Unit Residential 2 designations
to encourage small-scale, neighbourhood
serving retail and services.
H29.
Consider the use of density bonus pursuant
to Section 482 of the Local Government Act,
in exchange for affordable housing and
community amenities.
H30.
Encourage parking underground, below
grade or under the building on larger
projects with higher densities. For smaller
projects where the parking is at grade, locate
parking lots or parking garages behind
buildings away from the primary street to the
degree possible.
Townhouse Residential
H31.
Apply the Multi Unit Residential
Development Permit Area to regulate the
form and character of townhouses.
H32.
Encourage the development of townhouses,
rowhouses, and multiplexes on lands
designated Townhouse Residential on
Schedule B.
H33.
Encourage townhouses as a transition form
of housing in locations that are between
mixed use or multi-unit residential areas
and lower density residential established
neighbourhoods.
H34.
Place parking underground, below grade
or under the building on larger Townhouse
projects with higher densities. For smaller
projects where the parking is at grade, locate
parking lots or parking garages behind
buildings away from the primary street to the
degree possible.
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Uplands
H35.
Maintain the large lot, park-like character
of the Uplands neighbourhood with larger
homes set amongst mature landscapes.
H36.
Encourage the development of infill housing
on lands designated Uplands on Schedule B.
H37.
Apply the Uplands Siting Design Guidelines
to regulate the form and character of
development in Uplands.
H38.
Use the following list to clarify and provide
support to the Uplands Siting and Design
Guidelines in order to ensure that new or
renovated houses are consistent with the
design intent of Uplands:
- Respect and abide by the combination
of sensitive siting, design and use of
materials that creates a sense of harmony
and neighbourliness in Uplands. This
includes individual design solutions;
significant landscaped areas between
home, neighbour and street; and outdoor
spaces with their own design and
character
- Use high quality materials that have
a sense of timelessness, substantial
structural qualities, an authentic
appearance, qualities of workmanship or
craft, and qualities of appropriateness or
compatibility
- Provide adequate vehicular circulation
and parking areas on site screened from
the street with landscape, walls and other
enclosures, using narrow landscaped
driveways, with parking structures
sensitively sited, visually unobtrusive and
complementary with the architecture of
the house
- Site new development as much as
possible within the existing development
footprint, with front yard setbacks
consistent with other houses on the
street, retaining as many mature trees and
as much existing vegetation as possible,
respecting adjacent private outdoor use
areas, with massing comparable in scale
and massing with other buildings on the
street and partially screened from direct
view from the street
- Design the landscape to reflect the
character of the neighbourhood including
Garry oaks and other large trees,
enclosure of outdoor spaces with plants,
screening, and layering of plants and
features
- Design the space leading to the main
entrance of the house as a special
landscaped space providing a transition
from street to home
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Cedar Hill Corner Comprehensive Planning Site
The University's Real Estate Strategy 2023 envisions
a campus that plays a stronger role in meeting
regional housing needs. The Strategy identifies
university lands to support housing delivery, reduce
emissions and car dependency, and enhance the
livability and resiliency of the campus. This includes
building housing, providing local services to meet
daily needs and protecting natural areas like Mystic
Vale.
Cedar Hill Corner has been identified as a
comprehensive planning site. Comprehensive
planning sites identify and provide direction for
lands where additional planning and site design
will be needed to support future development
applications.
The site at Cedar Hill Corner is owned by the
University of Victoria (UVic) and is envisioned as a
vibrant, walkable mixed-use neighbourhood that
brings together diverse types of housing, including
potential for rental, non-market and seniors housing,
local shops, services, amenities and university uses
as well as open space in a compact village form near
a protected Mystic Vale natural area. Leveraging its
proximity to UVic, and its significant capacity for
meeting community housing needs, the site will
evolve into a complete, transit-oriented centre that
serves Oak Bay and the broader region.
The following policies are intended to guide future
development and support both university and
community needs.
H39.
Site Master Plan
- The site will be developed through a
phased development approach that
requires a master plan to be developed by
UVic in collaboration with the District and
will include public consultation prior to
any development
H40.
Land Use
- Support the creation of a new mixed-use
centre that provides multi-unit housing,
tourist accommodation, local shops, and
services in a high quality walkable and
animated public realm
- Support the inclusion of community and
university uses including childcare, non-
market housing, seniors housing, health
and wellness services, research, teaching
and office space that serve both the
campus and the broader community
- Drive through services and auto centric
development will not be supported
H41.
Site, Building, and Landscape Design
The Cedar Hill Corner Master Plan should
include the following site, building and
landscape design elements:
- The built form should be predominantly
mid-rise buildings (up to 6 storeys) with
support for high rise buildings (up to 28
storeys) where additional community
benefits and sustainable design can be
demonstrated and potential impacts
addressed through the master planning
process
- There should be an appropriate transition
of use and scale to adjacent areas
- Building entrances, patios, sidewalks
and landscaping will create a welcoming
pedestrian environment and built forms
that contribute to a high-quality public
realm
- Use site design to activate edge and
corner conditions, including setbacks, lot
patterns, building siting, and landscaping
Identify the location of publicly accessible
open space and plazas
- Identify opportunities to create a sense of
place
- Explore opportunities for comprehensive
energy planning and include features
and strategies to reduce greenhouse gas
emissions
- Preserve and enhance existing natural
areas, including trees and watersheds
through site-sensitive planning and on-
site stormwater management
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- Improve connectivity to natural area
pathways and the broader university trail
system
H42.
Mobility
- Integrate transit infrastructure, including
the potential for a new route serving the
site and university campus
- Encourage car-free and car-lite living
with implementation of Transportation
Demand Management measures including
active transportation infrastructure, bike
storage, car-share spaces and parking
maximums and subsidized transit passes
- Ensure as part of any future master plan
that a Transportation Impact Assessment
is undertaken to fully understand the
impacts of new development on the local
transportation network
- Identify phasing for future development,
including how parking areas and parking
demand and supply may change over
each phase
- Provide a minimum of Level 2 electric
vehicle charging that can serve residents
as well as visitors to the site and include
charging opportunities for electric
bicycles and other electric micro
mobilities
H43.
Infrastructure
- Identify utility connections and consider
how new development will be adequately
serviced through any necessary
extensions and/or upgrades to the
sanitary and water systems
- Encourage low-impact, nature-based
designs for stormwater management
Brett Ryan Studios
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5.4. Commercial and
Mixed Use
How this chapter relates to the OCP Vision of
Community Health & Resilience:
-
Expanding business opportunities
-
Increasing the vitality of commercial areas
-
Bringing more people closer to shopping and
services
-
Attracting more tourists
Overview
Business and commerce in Oak Bay is vibrant and
varied. The District licenses approximately 600
businesses annually in sectors including retail,
services, restaurant, entertainment, tourism, arts,
education, and home-based occupations. There are
also new types of businesses that target emerging
demographics and needs, such as the film industry.
Commercial and Mixed-Use Areas
Many residents value the easy access to Oak Bay's
local shopping and eating establishments that are
integrated within Oak Bay's neighbourhood villages
(refer to Schedule B). Residents can obtain many
goods and services within the boundaries of Oak
Bay. This strengthens the social and economic
vibrancy of the community and provides residents
with the enjoyment and convenience of shopping
and obtaining services close to home in attractive
outdoor settings. The economic viability of the
District is valued as a component of community
sustainability.
Oak Bay's primary commercial centre, known as "the
Avenue", "the Village", or "Oak Bay Village", is located
along Oak Bay Avenue between Foul Bay Road and
Monterey Avenue. The Village offers a classic "Main
Street" experience and is a destination for tourists
and residents throughout the region because of its
combination of walkability, charm, arts, local food
and shops.
Neighbourhood Villages are secondary commercial
areas that offer limited commercial uses and
amenities and that are oriented to be walkable for
the immediate neighbourhood. "Estevan Village"
on Estevan Avenue between Musgrave Street and
Dunlevy Street is the largest of these Neighbourhood
Villages, with smaller areas located on Foul Bay Road
at Neil Street, on Central Avenue at St. Patrick Street,
and on Cadboro Bay Road at Estevan Avenue.
These villages are service- oriented and meet
local needs. A new neighbourhood village at
Henderson and Cedar Hill Cross Road will benefit the
surrounding neighbourhood as it does not currently
have any commercial amenities within walking
distance. This area is accessible to transit and future
businesses will have the benefit of being located
close to the University of Victoria.
The villages and commercial areas described above
include primarily local, unique, and neighbourly
businesses offering a variety of shops and boutiques,
art galleries, restaurants, and entertainment.
Residents indicated that they like having access to
businesses within a short walk. Schedule B illustrates
locations that are a five-minute walk (400 metres)
from a commercial property.
Despite the vibrant commercial centres, there
are challenges related to business in Oak Bay.
The relatively small amount of commercial
land restricts the District's tax base to primarily
residential properties. Previous applications to
expand commercial uses have been denied due to
neighbourhood concerns such as traffic, parking,
noise, and neighbourhood character. Changing
patterns of consumerism such as online shopping
are also a potential threat.
There are opportunities to further strengthen the
business sector. Such opportunities may include
encouraging commercial expansion to strengthen
and enhance the character of the villages, and to
provide commercial uses close to more residents.
Shopping "experiences" that offer social and healthy
living benefits may become increasingly unique,
which will contribute to Oak Bay's value as a tourist
destination. Improving the urban design of Oak Bay's
villages is one tool for making these destinations
more appealing to a wider market.
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Specialized Commercial Areas and
Tourism
Other commercial areas in Oak Bay are based on
specialized uses. For example, the Oak Bay Beach
Hotel, Oak Bay Marina, and golf courses provide
distinct recreation and accommodation options for
residents and visitors to the District. Most of these
businesses have a strong tourism component.
Most of these businesses have a strong tourism
component. Tourism is an important business sector
in Oak Bay. Oak Bay Tourism is an active group,
funded by hotel taxes. The group aims to increase
visitors' ability to experience Oak Bay, with a diverse
choice of activities and opportunities to immerse
in local life. Oak Bay Tourism notes that tourism
development in the community can be beneficial to
residents, beyond economic benefits, by providing
high quality experiences and services that might not
otherwise be available.
Home-based Businesses
There are many home-based businesses in Oak Bay.
There are opportunities to provide more flexibility
for home-based businesses in the Zoning Bylaw. This
would help to enhance Oak Bay's business sector
and allow some residents more flexibility in their
lifestyles and more opportunities to generate income
to support high property costs.
Commercial and Mixed-Use Objectives
The Commercial and Mixed-Use objectives of the
OCP are as follows:
1. Support a modest expansion of commercial
and mixed commercial/residential uses within
Oak Bay while addressing concerns such as tree
protection, parking, traffic, noise, effects on
other properties, and neighbourhood character.
2. Plan and design commercial centres to attract
and meet the needs of local shoppers and
clientele, and visitors to Oak Bay.
3. Enhance the physical environment of local
shopping areas with a focus on providing
adequate and safe space for pedestrians and
other non-vehicular modes of transportation.
4. Encourage building designs that support activity
and interest at street level within the villages.
Support mixed-use buildings that include
commercial and residential uses.
5. Encourage and support home-based businesses
that are respectful of other residents and
neighbourhoods
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Commercial and Mixed-Use Policies
The Commercial and Mixed-Use policies of the OCP
are as follows:
General Policies
MUC1. Maintain a Commercial and Mixed-Use
Development Permit Area to regulate the
form and character of development and to
ensure it fits into existing commercial and
mixed use areas.
MUC2. Consider limited expansions of existing
commercial uses and new commercial uses
within the commercial designations on
Schedule B.
MUC3. Develop strategies that encourage and
support small and locally owned businesses
to establish and thrive.
MUC4. Consider updating policies and practices
related to parking requirements for
businesses, including consideration of cash
in lieu.
MUC5. Consider the use of density bonus pursuant
to Section 482 of the Local Government Act, in
exchange for community amenities.
Mixed-Use Areas
MUC6. Consider new mixed-use buildings adjacent
to or on corners facing existing commercial
or mixed use buildings, in areas near existing
villages, and along arterial and collector
roads where appropriate.
MUC7. Support the enhancement of existing
commercial areas within Oak Bay, e.g.,
more seats for cafes, provided that impacts
on neighbourhoods and streetscapes are
addressed.
MUC8. Encourage increases in the number of
housing units, potentially through smaller
units, in mixed-use redevelopment projects
that are replacing existing multi-unit
residential or mixed-use projects.
MUC9. Prepare a Village Area Plan for Oak Bay's
villages that establishes consistent urban
design and street standards to assist in
building the villages' identity and sense of
place. In the urban design plan, consider
paving, lighting, parking areas, landscaping,
street furniture, public art and gateway
features.
MUC10. Place parking underground or below grade
on larger projects with higher densities,
and on projects within Oak Bay Village. For
smaller projects where the parking is at
grade, locate parking lots or parking garages
behind buildings away from the primary
street to the degree possible.
Specialized Commercial Areas and Tourism
MUC11. Support Oak Bay Tourism in the marketing
of Oak Bay as a tourist destination, with
options including a kiosk in the Village, a
community-wide digital application and a
museum.
MUC12. Encourage accommodation properties
with less than six rooms to voluntarily join
Oak Bay Tourism and contribute to the
destination marketing fee, even though they
are not required to do so through the hotel
tax.
Home-based Businesses
MUC13. Review the Zoning Bylaw in relation to home-
based businesses to expand opportunities
while respecting the interests of neighbours,
considering the following options:
- Review restrictions related to the type
of business, placing more focus on the
number of clients/customers
- Allow bed and breakfasts up to a
maximum size where off-street parking is
provided for guests
- Consider urban agriculture as a home-
based business
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5.5. Community Institutional
and Social Well-Being
How this chapter relates to the OCP Vision of
Community Health & Resilience:
-
Serving the needs of all community members
-
Supporting cultural enrichment and education
-
Taking care of health
-
Attracting residents and tourists
Overview
Oak Bay's desirability as a place to live is based partly
on its social and cultural fabric. The community
has a wealth of leaders, volunteers, programs, and
services in arts and culture, education, health and
other social services. Oak Bay also has a rich heritage
expressed in its buildings and landscapes. These
initiatives and legacy that support community and
social well-being are a major component of Oak
Bay's sustainability as a community.
Community Institutional properties, which may
be in public or private ownership, often have high
community value, some for the social opportunities
they provide and many for the character of the
buildings and landscapes.
Oak Bay collaborates with the CRD, the Greater
Victoria Public Library and other regional authorities
and organizations on services related to arts and
culture, library, and other social services. There is
also effective engagement with other organizations
such as School District 61, the University of Victoria,
Camosun College, and Island Health.
A diverse range of volunteer groups contributes to
enhancing livability. Over 20 community groups are
active in Oak Bay. These groups offer support and
advice to District decision- makers, they provide
direct services, and they host multiple events.
The Oak Bay Volunteer Services Society (OBVSS)
provides one-on-one assistance to all members of
the community.
Arts and Culture
There is a dynamic and diverse arts and culture
scene flourishing in Oak Bay. This includes many
artists, musicians, dancers, poets, playwrights and
novelists who reside in Oak Bay, and the many
cultural institutions such as the District's facilities,
the David Foster Theatre, Oak Bay High School
theatre, church halls, the Canadian College of
Performing Arts, and the University of Victoria.
Many arts, culture and literacy programs are offered
at Oak Bay's public facilities. In addition to programs
at the Oak Bay Recreation Centre, there are popular
programs at the library and Monterey Centre.
Windsor Pavilion is also an important venue, used
for meetings of arts and culture groups, as well as
sports-related groups.
Oak Bay's arts and culture organizations and venues
host a vibrant arts and culture scene. Many artists
open their studios each year for the Oak Bay Artists
Studio Tour and display their works during the
annual Bowker Creek Brush Up.
The Oak Bay Branch Library, co-located with the
Monterey Centre, in the Village, is operated by the
Greater Victoria Public Library system. The complex
was built in 1971, and library space was expanded
and renovated to include the heritage Tonkin
House in 1999. The branch offers print and digital
collections, public computers, and a wide array of
programming for all ages, from family story times
to one-on-one computer and e-book help. A very
popular destination offering social, cultural and
educational benefits to all community members, the
library's use stretches the capacity of the space.
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Education
Oak Bay's broad array of public and independent
schools offer a wide range of classes, programs
and services from preschool through to advanced
education at the University of Victoria, one of
Canada's top universities. The larger educational
institutions include the University of Victoria,
Camosun College, Oak Bay High School, Monterey
Middle School and Willows Elementary.
The University of Victoria (UVic) is located with about
half of its campus in Oak Bay, and the remainder
in Saanich. This regional facility with over 22,000
students and approximately 5,000 staff is one of
the major employers on Vancouver Island and
provides a vital employment anchor for current and
future District residents. Many UVic students seek
accommodation in Oak Bay; they live in shared
rental houses, secondary suites and likely a small
number live in apartments. To help address this
housing need, the university's goal is to evolve the
campus into a complete community.
Camosun College's Lansdowne campus is located on
the border with Saanich, with a portion of its campus
extending into the District. Camosun College serves
approximately 14,000 learners every year at their
two campuses (Interurban and Lansdowne), which
includes students in academic, applied degree,
trades, and continuing education programs. Building
on its 2019 Master Plan, the college is currently
undertaking the development of a housing project
on the Lansdowne campus, with construction
anticipated to start in spring 2026 and the building is
expected to open by fall 2027.
The six-storey, timber-frame building will provide
over 400 affordable student beds and include
commercial spaces like a coffee shop and retail
store, along with amenities for programming and
wellness, aiming to build a more vibrant on-campus
community and alleviate local housing pressure.
Oak Bay High School serves 1,400 local and regional
students, and 150 international students. In 2014,
the school undertook a major redevelopment and
expansion. This included the development of a
Neighbourhood Learning Centre to host a day care
and community programs for teens and others, and a
performing arts theatre.
Public school sites, like parks, can serve as social
and recreation hubs for neighbourhoods, especially
at the elementary school level. Due to a decline in
the school age population, Uplands Elementary
School was closed several years ago and is being
used by School District 61 as a temporary facility for
schools under renovation and offices for the Victoria
International High School Program. According to
residents, the school closure has had a significant
effect on the neighbourhood; the local gathering
place is gone, and there are fewer families living and
fewer people walking in the neighbourhood. School
District 61 also converted Monterey Elementary from
a neighbourhood elementary school to a middle
school.
Willows Elementary is the last remaining public
elementary school in the District. Most of the schools
have catchments that extend beyond District
boundaries. Likewise, some Oak Bay students attend
schools in other jurisdictions. The cross-municipal
attendance has increased for Oak Bay students as
a result of the elementary school closures and the
adjustment of catchment boundaries.
Oak Bay is home to various independent schools,
such as the Glenlyon Norfolk Junior School and Saint
Michaels University Junior School. There are also a
number of thriving pre-schools.
The Greater Victoria Public Library, Oak Bay Branch,
offers free learning and training opportunities
tailored to the community's interests.
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Health Care
The former Oak Bay Lodge at 2251 Cadboro Bay
Road, which was owned and operated by Island
Health, provided health care and a variety of
programs and services for older adults with chronic
and complex conditions, including dementia. These
services were moved out of Oak Bay in 2020, the
former building was demolished. The vacant site is
now owned by the Capital Regional Hospital District
(CRHD). The CRHD and Island Health are exploring
options to return health care and long-term care
services to the site.
Greater Victoria, including Oak Bay, is served by two
full service acute care facilities, the Royal Jubilee
Hospital and the Victoria General Hospital that
specialize in seniors and children's care. Other health
care services also exist in Oak Bay and just outside
the municipal boundary near Royal Jubilee Hospital,
including family physicians and other health and
wellness clinics.
Many of the diverse programs offered at the
recreation and community centres, described in
Section 5.6 Parks and Recreation, are also related to
health and fitness.
Faith-based Institutions
There are a number of churches in Oak Bay.
Churches in the community have played an integral
role in Oak Bay's history, providing most of the social
infrastructure and support for the first 50 years or so,
and continuing to provide such services today. They
host many community events and amenities enjoyed
by the broader public such as Easter Egg hunts,
meeting halls for community groups, day cares, and
more.
Some of the churches are facing declining
memberships and are seeking alternative options
for their land or space. Some of these institutions
have built multi-unit residential developments on
their properties. There could be more proposals for
similar developments in the future.
Festivals and Events
Oak Bay is known for its excellent community spirit,
demonstrated by high participation in numerous
festivals and special events. These include uniquely
Oak Bay events such as the annual Oak Bay Tea
Party, a large community fair at Willows Park; the
Christmas Light-up event throughout November and
December; the Village Night Market, held monthly
during the summer on Oak Bay Avenue; the Oak Bay
Half Marathon, which takes place in May; the annual
Arts Alive public art program featuring outdoor
sculptures and painted pianos; and the Bowker
Creek Brush-Up, an event in August where local
artists paint along the creek banks. Neighbourhood
enthusiasm and cohesiveness are also expressed
through various community activities like block
parties and the Mayor's welcome activities for new
residents.
Gloria Black
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Community Institutional and Social
Well-Being Objectives
The community and social well-being objectives of
the OCP are as follows:
1. Meet the social and cultural needs of all
members of the community throughout their
lives.
2. Enhance and expand public community
institutional facilities where practical, including
education, library, and health care facilities.
3. Encourage community institutional facilities to
provide spaces that can be made available for
use by the community.
4. Support the expansion and vitality of arts and
culture in the community.
5. Encourage the provision of support services
and opportunities for community inclusion
for persons with physical and developmental
disabilities.
6. Engage and build stronger relationships with
local and regional partners, Songhees Nation
and Esquimalt Nation, education institutions,
and other significant organizations.
7. Support the planning and location of festivals,
events and street closures in the District, while
taking care to minimize impacts on residents and
businesses.
8. Enhance public education opportunities that
relate to arts and culture, nature interpretation,
Songhees Nation and Esquimalt Nation and
heritage.
9. Reinforce Oak Bay's unique community identity
by strengthening policies on heritage per the Oak
Bay Heritage Plan.
Community Institutional and Social
Well-Being Policies
The Community Institutional and Social Well-Being
policies of the OCP are as follows:
General Policies
CIS1.
Work collaboratively with local and regional
partners, education institutions, Songhees
Nation and Esquimalt Nation, and other
significant organizations to identify
and address emerging issues related to
community and social well-being, and on the
planning of new, improved and expanded
community institutional facilities in Oak
Bay. Such organizations include, but are
not limited to: Capital Regional District and
member municipalities, School District 61,
University of Victoria, Camosun College,
Greater Victoria Public Library, Island Health,
Songhees Nation and Esquimalt Nation, local
service clubs, non-profit organizations, faith-
based institutions, and provincial and federal
agencies.
CIS2.
Encourage community institutional facilities
to provide opportunities for community use
of their properties for walking at a minimum,
and recreation uses where possible.
CIS3.
Work with School District 61 to explore
opportunities to deliver community
amenities (e.g., childcare, housing) within
school facilities, and to plan for new school
formats.
CIS4.
Consider Multi-Unit Residential
developments on institutional properties
where affordable or non-market housing is
provided.
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CIS5.
Work with government and community
organizations to provide a full spectrum of
services to meet peoples' needs throughout
their lives, such as the following:
- Local and regional health and wellness
services, including residential, complex
and dementia care services
- Public library services
- Faith-based and spiritual services
- Arts and culture
- Lifelong learning and skills training
- Seniors and youth programming
- Early childhood education
- Volunteer and community service
opportunities
CIS6.
Support the provision of opportunities for
persons with physical and developmental
disabilities, mostly through community
organizations, including, but not limited to,
the following:
- Identifying the interests and needs for
persons with physical and developmental
disabilities
- Providing economic opportunities,
including direct and supported
employment within the community in the
public and private sectors
- Providing education opportunities,
including integration initiatives in K-12,
design and participation in advanced
education programs at UVic and
Camosun, and specialized programming
through Oak Bay Recreation
- Supporting meaningful participation
within volunteer organizations to facilitate
community engagement
- Promoting and encouraging awareness,
accommodation and support initiatives
within the community
- Encouraging flexibility and diversity
in housing and transportation / public
realm design that address some of the
challenges faced by this subset of the
population, as noted elsewhere in this
plan
CIS7.
Promote a culture of volunteerism and
neighbourliness and recognize the important
contributions of volunteers.
CIS8.
Support groups in acquiring grants or other
types of funding from outside sources.
CIS9.
Encourage effective community engagement
in District processes by providing information
and opportunities for those affected by a
decision to participate in a meaningful way.
CIS10. Permit childcare uses more broadly within
all appropriate zones and support flexible
options for childcare such as in-home
childcare centres, and group childcare
facilities.
Arts and Culture
CIS11. Support improvements in programming,
services, and facilities that achieve the arts
and culture vision objectives.
CIS12. Work with regional partners on an arts and
culture strategy for the region.
CIS13. Develop partnerships to market Oak Bay as
a creative community that attracts visitors,
businesses, and new residents, and to
increase participation in arts and culture.
CIS14. Support artists, organizations and
community partners through arts and culture
planning and activities.
CIS15. Pursue shared arts and culture opportunities
with Songhees Nation and Esquimalt Nation.
CIS16. Prepare and adopt a public art policy and
consider undertaking the following tasks
related to public art:
- Encourage the inclusion of public art in
larger development projects, potentially
as a community amenity per Section 5.1
Land Use.
- Encourage temporary public art through
public events such as displays, exhibits
and shows throughout the community,
e.g., weekly street market in the summer
promoting local artists.
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CIS17. Support the continued presence of the
Canadian College of Performing Arts within
Oak Bay.
Education
Knowledge Centre - University of Victoria
The university's campus is a critical institution that
will continue to evolve and adapt in response to
changing academic needs, population growth and
regional priorities. A well-planned and accessible
campus benefits both the university and surrounding
communities. Continued collaboration between
the District and the university and other regional
partners will be essential to respond to evolving
regional priorities such as housing and climate
action, to ensure that the university remains a place
of opportunity, learning and knowledge that will
continue to benefit the community for generations to
come.
CIS18. Work with the University of Victoria to
explore how the District can support the
university in implementing its future
campus development plans and support
both university and community needs, by
considering the following:
- Enable a mix of compatible land uses
associated with a university including
academic and research spaces, student
and employee housing, childcare, sport
and recreation, health services, retail,
restaurant and food services, utilities,
open space and cultural amenities.
- As a major institutional landowner and
regional employer, the university is
expected to grow to support academic,
research and housing needs enabling
efficient land use while maintaining a
balance between built form, open space
and natural features.
- Enable the development of mid-rise
buildings on campus, up to six-storeys
in height, to accommodate institutional
growth while minimizing land
consumption, maintaining a walkable
human-scale built environment.
- Enhance key open spaces and natural
features including tree canopy and seek
opportunities to improve creek and
watershed health i.e., Bowker Creek and
Hobbs Creek watersheds.
- Consider increased building heights
above six storeys at strategic locations,
such as major campus gateways or near
Ring Road, where additional height/floor
area can help meet long-term needs while
protecting sensitive ecological areas and
reinforcing a compact campus form.
- Encourage active transportation,
enhanced transit access and
Transportation Demand Management
(TDM) measures as primary strategies for
improving campus mobility and reducing
reliance on private vehicles.
- Manage parking and develop parking
maximums for new campus development
to align with the District's and UVic's
climate action goals, support more
sustainable travel behaviour and
encourage efficient use of land and
infrastructure.
- Remove minimum parking requirements
for on-campus student housing to
reflect low vehicle ownership rates
among students, reduce costs and land
consumption and support affordable,
transit-oriented development.
- Continue to enhance electric vehicle
charging infrastructure throughout the
campus in support of climate action goals.
CIS19. Partner with School District 61, post-
secondary institutions, independent schools,
preschools, and the Greater Victoria Public
Library to expand community education
opportunities.
CIS20. Collaborate with education institutions and
community groups to provide more public
education opportunities that relate to arts
and culture, nature interpretation, First
Nations cultures, and heritage.
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District of Oak Bay - Official Community Plan | 73
Health Care
CIS21. Encourage the development of a range of
seniors' living facilities, from independent
living to extended care, within the
community.
CIS22. Work with Capital Regional Hospital District
and other agencies on the future of the
Oak Bay Lodge site to plan a facility at that
location to serve community health care
needs.
Festivals and Events
CIS23. Consider dispersing the distribution of
festivals, events and street closures within
the District to a greater degree.
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5.6. Parks and Recreation
How this chapter relates to the OCP Vision of
Community Health & Resilience:
-
Enhancing the condition of ecosystems in parks
-
Providing opportunities for healthy, active
lifestyles
-
Increasing social connections and sense of
belonging
-
Attracting residents and tourists
Overview
Parks and recreation are vital components of life in
Oak Bay, and a source of pride and inspiration for
residents. The community has outdoor and indoor
spaces and facilities that offer a broad array of
recreation opportunities to residents and visitors
of all ages, interests, and abilities. The spaces and
facilities include the District's parkland, trails and
paths, and recreation centres. Complementing these
are public and private amenities such as the Victoria,
Uplands and Henderson Golf Courses, Oak Bay
Marina and Royal Victoria Yacht Club.
There are important connections between
information in this section and Community and
Social Well Being, which includes art, culture,
heritage and education (see Section 5.5 Community
Institutional and Social Well-Being). Parks and
recreation amenities often serve as venues for arts
and culture as well as sports and fitness programs.
In addition to serving its residents, Oak Bay is a
destination for tourists and visitors from throughout
the region. The natural environment, especially the
ocean shoreline, is a particular draw. People are also
attracted to Oak Bay Village, the multiple festivals
and events, the characteristic streetscapes, and
the Oak Bay recreation facilities. Oak Bay Tourism
follows the principle that "tourists love what
residents love", noting that more linked trails and
information are key interests of tourists.
Parks and Outdoor Recreation
Parks have a strong inter-relationship with
community sustainability. Most of Oak Bay's
important habitats are located within parks, and
environmental protection and enhancement is a key
component of park management. Natural features
such as shorelines, creeks, forests and Garry oak
uplands are cherished by the community, and they
require careful planning and management to allow
human access while protecting the environmental
values. Parks staff are responsible for managing trees
on public land and the urban forest that support
climate change mitigation and enhance the livability
of Oak Bay.
The District is home to 32 municipal parks, which are
grouped into five types (Figure 5.2):
- Natural Parks, such as Uplands and Anderson
Hill
- Multi-sports Parks, such as Carnarvon,
Henderson and Windsor
- Neighbourhood Parks, such as Nottingham,
Lafayette and Quimper
- Special Use green spaces, such as Bowker
Creek Walkway and the Native Plant Garden
- Boulevard/Ocean Parks, such as Willows,
Haynes and Loon Bay
The total amount of parkland in Oak Bay is over 76
hectares (188 acres).
This equates to about 3.9 hectares (9.7 acres) of
parkland per 1,000 population. Parks, open spaces,
recreation, and golf courses comprise the second
largest land use in the District, at 18% of the land
area, after single detached residential. Publicly
accessible green space is also available within the
District on properties managed by institutions
such as School District 61 and in the neighbouring
jurisdictions of Saanich and Victoria.
Other opportunities related to parks include urban
agriculture, invasive species management, and dog
management. There is significant interest in urban
agriculture in Oak Bay, partly as a component of food
security, but less enthusiasm for community gardens
taking up park space.
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District of Oak Bay - Official Community Plan | 75
McNeill
Bay
Oak
Bay
Cadboro Bay
B ow
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Creek
Ho
b
bs Cree
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Oak Bay Ave
McNeill Ave
Beach Dr
Beach Dr
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evan Ave
E
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e
Rd
Newport Ave
L
a
nsdowne Rd
B
arkley Ter
Victoria Ave
Beach Dr
St Patrick St
Haultai
n
S
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Bowker Ave
Currie Rd
Windsor Rd
Monterey Ave
He
nd
erso
n
Rd
Ki
n
g
Ge
o
rg
e
T
er
Foul Bay Rd
Cadboro Bay Rd
Cedar Hill Cross Rd
Foul Bay Rd
H
e
nde
r
s
o
n Rd
Willows Park
Carnarvon
Park
Henderson
Park
Fireman's Park
Uplands Park
Trafalgar
Park
Anderson
Hill Park
Windsor Park
Mary Tod
Island
Trial
Islands
Trial Islands
Legend
Boulevard / Oceanside Parks
Multi-Sport Parks
Natural Parks
Neighbourhood Parks
Special Use Parks
Unclassified Parks
Oak Bay Municipal Boundary
I
0
0.5
1
1.5
0.25
km
Date: 2/26/2025
Figure 5.2 Oak Bay Green and Natural Spaces
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Trails and Paths
Oak Bay residents indicated that trails and paths are
the most important recreation amenity, and this is
consistent with municipalities across Canada. The
District manages eight unique walking trails, and in
general, Oak Bay is a highly walkable community.
Many community members indicated that walking
and biking are their primary modes of transportation
because it is relatively easy and pleasant to walk
and bike within Oak Bay. The shoreline is a key
attraction for walking and biking routes and there
are numerous beach access paths; at this time access
along the shoreline is not continuous.
The Oak Bay Active Transportation Strategy and
CRD Pedestrian and Cycling Master Plan provide
recommendations for pedestrian routes. The
Strategy proposes two multi-use paths and some
neighbourhood pathway and lane connections.
The key opportunities related to trails and paths
are to increase connectivity and improve public
access to beaches and waterfront amenities, though
this must be balanced with the need to protect the
delicate shoreline ecosystem. There are a number
of unopened road allowances that could play a
role in achieving these opportunities. The Bowker
Creek Greenway Corridor offers opportunity for a
continuous multi-use trail. A connected trail system
offers many benefits to a community, and it is also a
draw for tourists.
Marinas and Boating
The shoreline itself functions as a form of natural
recreation amenity that supports many activities
such as beach visits, swimming, kayaking, fishing,
nature appreciation and walking. Boating is an
important recreation activity for some Oak Bay
residents. There are boat ramps at Cattle Point and
by Queens Park. Permanent moorage is provided
at Oak Bay Marina and Royal Victoria Yacht Club.
While the boat moorage spaces in the two facilities
are usually fully occupied, any consideration for
further expansion of moorage or associated parking
would need to be considered in the context of the
residential nature and character of the adjacent
neighbourhoods and shoreline resources and
values. Multiple jurisdictions, including the federal
and provincial governments, as well as the private
sector, property owners and the community,
have responsibilities and interests related to the
management of the shoreline and the marine
environment.
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Indoor Recreation
Oak Bay's Parks and Recreation Department provides
a wide range of opportunities in its five recreation
centres including:
- Oak Bay Recreation Centre is a major hub of
the community that includes an ice arena, two
swimming pools, a fitness centre, an indoor
sports field, and dining area. Tennis courts
in bubbles, and skateboard area are located
adjacent to the Recreation Centre
- Henderson Recreation Centre, located at the
northern end of the District, offers a fitness centre,
gymnasium, outdoor tennis courts and par-three
golf course
- Monterey Recreation Centre, located in Oak Bay
Village, is home to over 30 social clubs in addition
to providing courses for adults "from yoga to
cuisine and everything in-between"
- Windsor Pavilion is a unique facility that is used
for recreation programs, community meetings,
and social functions in its multi-purpose rooms
- The Neighborhood Learning Centre at Oak Bay
High School provides programs for youth and
other community groups, as well as daycare and
after-school programs
The recreation centres are highly popular facilities
that contribute to the social and cultural life of the
community. As most of them are aging, it will be
important to plan for future investments required to
address evolving community needs.
Seven tennis courts are located in two bubbles
directly behind Oak Bay Recreation Centre. Future
consideration of the tennis bubbles is complicated
by the fact that Bowker Creek flows under a portion
of the structure. Planning for any improvements
should include the potential to daylight portions of
the creek.
Participants in the 2025 OCP engagement process
expressed broad support for the parks and
recreation policies, emphasizing the importance of
maintaining and expanding park space, trails, and
connections between parks to support accessibility
and active living. Feedback also called for upgrades
to recreation facilities, such as new or improved
pools, ice rinks, playgrounds, community meeting
spaces, and universal change rooms along with
more youth, arts, and culture programming that is
affordable and inclusive.
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Parks and Recreation Objectives
The parks and recreation objectives of the OCP are as
follows:
1. Maintain parks and recreation facilities, including
the ecosystems and urban forest, in good
condition.
2. Expand and upgrade the trail/path system,
including improvements to public access to and
along the shoreline.
3. Upgrade parks and recreation facilities,
programs and services to meet community
needs based on good fiscal management.
4. Ensure future parks and facility plans align with
housing and population growth projections
identified in the OCP.
5. Promote and provide information about trails/
paths, parks, and recreation opportunities within
the community to improve personal well-being
and community sustainability.
6. Recognize and enhance the role of parks and
recreation in supporting tourism opportunities.
7. Recognize the importance of marinas in
supporting water-based recreation for residents
and tourists, while protecting the shoreline and
character of the residential neighbourhoods.
8. Support the efforts of the committees and other
volunteers who make major contributions to
parks and recreation in the community.
Parks and Recreation Policies
The parks and recreation policies of the OCP are as
follows:
General Policies
PR1.
Prepare a Parks and Recreation Master Plan
and once it is complete, revise the policies in
this section as needed to be consistent with
the Master Plan.
PR2.
Explore options for supporting economic
development of tourism opportunities in
parks and recreation facilities, balancing this
with environmental protection, retaining
community character and ensuring that
parks remain available for the community.
PR3.
Support and acknowledge the significant
work of the Parks and Recreation Advisory
Committee, Active Transportation Advisory
Committee, and the many other volunteers
who make major contributions to parks
and recreation in the community through
park stewardship, sports leagues, and other
activities.
Parks and Outdoor Recreation
PR4.
Manage the natural areas within parks to
maintain or improve the health and long-
term preservation of biodiversity, including
tree care, removal of invasive species, and
other associated activities.
PR5.
Support and enhance vegetation in parks
and on public land in recognition of the value
that these natural ecosystems provide to the
community.
PR6.
Plan upgrades to parks and amenities in
consultation with community members.
PR7.
Improve and expand park signage as well as
information including park identification,
wayfinding, regulatory and interpretive signs
throughout the community.
PR8.
Explore opportunities for urban agriculture
in the community that do not restrict
parkland to a single purpose use.
PR9.
Engage with community members to refine
dog management strategies, regulations,
monitoring and enforcement, considering
the impacts of dogs on natural areas.
PR10. Support access to parks, recreational and
natural spaces across the District, including
areas owned or managed by other public
organizations, such as School District 61.
PR11. Ensure parks and public spaces are
welcoming, inclusive and accessible for
people of all ages, abilities, ethnicities and
identities.
PR12. Protect and enhance biodiversity across the
district to encourage connectivity between
recreational spaces and natural areas.
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Trails and Paths
PR13. Prepare a network plan of trails/paths, as a
complement to the Active Transportation
Strategy, in order to improve the connectivity
of the trail/path system.
PR14. Improve and expand the network of trails
and paths as opportunities arise through
private development contributions or grants
for active transportation.
PR15. Maintain and enhance public access to and
along the waterfront, balanced with an
objective of retaining the shoreline as natural
as possible.
PR16. Provide more amenities along high-use
trails/paths, including benches, water
fountains, garbage/recycling bins and curb
drops.
Indoor Recreation
PR17. Maintain and upgrade recreation centres
as required to ensure safe and high-quality
assets that meet community needs.
PR18. Continually review and update recreation
programs and services for community
members of all ages and abilities.
Marinas and Boating
PR19. Work with other levels of government, the
private sector, property owners, and the
community on plans that balance the needs
of boaters in the community with interests
in protecting the shoreline and the character
of residential neighbourhoods. Consider the
following tasks:
- Improve access for small boats to the
water.
- Improve the boat ramps and storage areas
used by day boaters and sailors at Cattle
Point, potentially charging fees for the use
of these facilities.
- Encourage the marina and yacht club to
increase opportunities for use of facilities
for community services and programs.
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5.7. Heritage
How this chapter relates to the OCP Vision of
Community Health & Resilience:
- Protection of the natural heritage landscape
- Conservation and rehabilitation of the historic
built environment
- Social values of retaining history
- Attraction of residents and tourists who
appreciate heritage
Overview
There is a strong cultural heritage in Oak Bay, which
is greatly valued by its residents. Key heritage
aspects of Oak Bay include the streetscapes and
neighbourhoods, historic buildings and structures,
cultural and natural landscape features, and history.
There is an integral relationship between
conservation of heritage resources in a community
and land use planning and development. A key
thrust of the provincial amendments to heritage
legislation in 1994 was to encourage a better
integration of heritage and land use planning at the
local government level and to provide tools for local
governments to work with landowners to conserve
important heritage resources.
The District is becoming more proactive in
conserving its community heritage through the
work of its municipal volunteer bodies such as the
Heritage Commission, the Heritage Foundation and
Municipal Archives.
There are currently 38 designated heritage
properties and 7 designated heritage sites within
the District. The Prospect Heritage Conservation
Area (HCA) protects the character and heritage value
of the area including York Place, San Carlos Ave, a
portion of Beach Dr and Oak Bay Ave and Prospect
Place and Broom Rd.
Archaeology and Traditional Use Sites
Archaeological artifacts and traditional use sites
indicate that Oak Bay was the home to the lək̓ʷəŋən-
speaking peoples, known today as the Songhees
Nation and Esquimalt Nation. For many centuries,
Indigenous people camped or lived permanently at
tidewater sites harvesting the bounty of the Garry
oak meadow landscape and nearby Salish Sea. Prior
to European settlement, the lək̓ ʷəŋən peoples lived
in the area now known as Oak Bay for thousands
of years, stewarding the land, harvesting marine
and forest resources, and maintaining a vibrant
cultural and spiritual connection to the land. The
lands of Oak Bay still contain many artifacts and
archeological sites from this era.
Some archaeological and traditional use sites are
located within parks, and archaeological remains
and artifacts have been located during construction
projects. It is critical to treat archaeological and
cultural resources such as traditional use sites
with the utmost respect. Provincial legislation and
regulations put the onus on a landowner to identify
and protect possible archaeological resources; the
municipality includes this consideration in its own
capital works and in the review of development
applications. At the community level, there are
opportunities to work with the Songhees Nation and
Esquimalt Nation to integrate awareness of their arts
and culture into the social fabric of Oak Bay.
Heritage Objectives
The heritage objectives of the OCP are as follows:
1. Conserve Oak Bay's history and heritage.
2. Conserve established neighbourhoods and
streetscapes.
3. Conserve natural landscapes.
4. Celebrate Oak Bay's unique history.
5. Support the recommendations of the 2013 Oak
Bay Heritage Plan and the Heritage Program
Review (April 2024).
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Heritage Policies
The heritage policies of the OCP are as follows:
HR1.
Support the retention of heritage and
character houses and other buildings in line
with the Standards and Guidelines for the
Conservation of Historic Places in Canada
and through the following measures:
- Use the authorities enabled under
the Community Charter and Local
Government Act as appropriate to
protect and conserve heritage property
including, but not limited to, heritage
revitalization agreements, density
bonusing, maintenance standards,
development of a community heritage
register, and designation of heritage
property
- Consider incentives to lower housing
costs, such as permissive heritage tax
exemptions (under Section 225 of the
Community Charter), where heritage
buildings or properties are used for
housing
- Consider conversions and retrofitting
to a range of uses to support the
conservation of heritage and character
buildings, such as secondary suites,
bed and breakfasts, and home-based
businesses
- Promote heritage conservation grants
provided by the Oak Bay Heritage
Foundation and others
HR2.
Work with the Oak Bay Heritage
Commission, Oak Bay Archives, Oak
Bay Heritage Foundation, and others to
evaluate, register, and protect heritage
assets through systematic inventory,
research and heritage conservation
practices and policies, and to promote and
provide education on heritage values and
resources.
HR3.
Identify neighbourhoods and streetscapes
that warrant protection and identify tools to
protect these as redevelopment takes place.
HR4.
Implement stewardship policies and
practices for municipally owned heritage
resources and significant sites, consistent
with provincial standards and legislation.
HR5.
Explore opportunities to establish Heritage
Conservation Areas, as set out in Section 9.0
of this Official Community Plan, as a tool to
conserve the character of significant clusters
of heritage buildings and their associated
landscapes, while ensuring development is
appropriate to the heritage character of the
neighbourhood.
HR6.
Collaborate with Songhees Nation and
Esquimalt Nation on items of mutual interest
related to arts, culture, interpretation and
education. The following are potential
opportunities:
- Work with Songhees Nation and
Esquimalt Nation on ways to provide
interpretation and education related
to traditional Indigenous uses,
archaeological sites and ways that First
Nations perceived of and managed the
natural environment, respecting the
importance, integrity and potential need
for confidentiality related to some sites.
- Integrate Songhees Nation and Esquimalt
Nation arts and culture into community
events, buildings, programs, parks, and
public spaces.
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6. Servicing Our
Community
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District of Oak Bay - Official Community Plan | 83
6.1. Transportation
How this chapter relates to the OCP Vision of
Community Health & Resilience:
- Supporting healthy and active transportation
- Accommodating a wide range of mobility needs
- Reducing energy use and greenhouse gas
emissions
- Improving the vitality of villages
Overview
Oak Bay is a walkable community with interesting
streets, laneways and trails. There are also increasing
numbers of vehicles and competing interests for use
of the roads. As the population ages and becomes
more diverse, and in order to become a more
sustainable community, there is an opportunity
to reinforce a varied, multi-modal transportation
network. Providing the necessary infrastructure is key
to encouraging more active modes of transportation
among residents and visitors.
The majority of Oak Bay's working residents are
employed outside the District. As a result, there is a
significant outflow/inflow of residents during peak
commuting times. Although efforts have been made
to increase active transportation modes, car travel
remains the predominant mode of transportation for
commuters, those enjoying retirement, and others
moving through the community. In comparison with
the rest of the whole CRD, however, residents in the
Core Sub-Area (which includes Oak Bay) drive less and
walk, bicycle and take transit more often (Figure 6.1).
Transportation
Mode
Core Sub-Area
Daily Mode
Share
CRD Daily
Mode
Share
Auto - driver
48.5%
54%
Auto - passenger
13.2%
15%
Pedestrian
18.9%
15%
Public transit
7.7%
6%
Bicycle &
micromobility
10.2%
8%
Other modes
1.5%
2%
Oak Bay's Complete Streets Policy (2012) outlines
Oak Bay's streets, sidewalks, and pathways as
a shared community resource that supports
connection and mobility for all users. As the District
plans, rebuilds, and maintains its transportation
network, it will prioritize safe, accessible, and
financially responsible design that considers
pedestrians, cyclists, and neighbourhood amenities.
In busy, commercial locations, successful examples
of complete streets include urban design features
and pedestrian and cycling amenities such as street
trees, landscaping, wide sidewalks with universal
design, street furnishings, pedestrian scale lighting,
windows at street level with transparent glazing, bike
racks, and weather protection.
Complete Streets are streets for everyone.
They are designed and operated to enable safe
access and movement for all users. Pedestrians,
cyclists, motorists, scooter riders, and public
transportation users of all ages and abilities are
able to feel safe and to reach their destinations.
Complete Streets make it easy to cross the
street, walk to shops, and cycle to work.
Adapted from National Complete Streets
Coalition
Figure 6.1 Origin and Destination Studies, 2022
(Source: Capital Regional District)
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As the major owner of public lands in Oak Bay, the
District takes responsibility for the health, safety
and well-being of its residents and employees, and
the effective use of its public parking facilities, and
related transportation networks. The District shows
leadership by example, and asks businesses, schools,
public institutions, and private developers of land
to join the District in comprehensive programs of
Transportation Demand Management (TDM).
Oak Bay considers the following TDM options within
District planning of transportation networks:
- collaboration with business associations
to increase all types of parking options for
customers, visitors, and employees across the
District
- collaboration with private condominium owners,
landlords and other building operators to ensure
efficient access to off-street parking, and to
increase revenue to offset costs of "shut-in"
parking, ensuring parking turnover and space
availability occurs at optimal levels
- flex parking passes for all employees who
use alternate modes of transportation, but
occasionally drive
- designated carpool stalls
- building programs that include showers and end-
of-trip facilities in all new buildings, and in major
public building renovation projects
- pedestrian-oriented design
- cycling-friendly facilities
- commuting options
- paid parking
- subsidized employee bus pass programs
- mandatory bus pass programs for students
- parking fees that increase annually to discourage
vehicle trips and to recognize the cost for
employers of supplying and operating parking
spaces
- sidewalk, pathway and multiple use trails to
improve pedestrian and cycling use
- collaboration with other public institutions,
churches, and government agencies to share
parking costs, and to promote effective use of
available parking stalls
Transportation Demand Management
(TDM) is a tool used to encourage new
transportation patterns. TDM plans and
strategies include education, incentives and
disincentives, and travel options to support
walking, cycling, ridesharing and transit.
This can help to achieve multiple goals, such
as reducing the reliance on carbon-based
fuels in support of GHG reductions, meeting
the changing needs of the population,
increasing the efficiency of transportation
infrastructure, and providing measurable
health improvements. TDM can be a cost-
effective alternative to increasing capacity.
Significant funding for transportation networks
is provided by the Capital Regional District, the
Province of BC, and by the Federal government.
Different criteria apply in each funding program, but
most municipalities on lower Vancouver Island are
successful in obtaining external funding annually
for new or improved transportation infrastructure.
Funding success largely depends upon submitted
proposals that advocate and promote complete
streets or alternate transportation. The government
funding programs do not encourage proposals seen
as increasing automobile traffic. Examples of these
funding programs are Community Works Fund (CRD),
ICBC (support for improvements to "dangerous
intersections)", Building Canada Fund, Active
Transportation Fund, and Canada Public Transit
Fund (Federal).
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Road Network
District roads are divided into four types, which are
defined as follows:
- Arterial roads are the largest that occur in Oak
Bay. These connect the major activity centres and
carry large volumes of traffic entering and leaving
Oak Bay.
- Collector roads collect traffic from the local roads
and channel it to the arterials. This type of road
may still maintain most of the characteristics of
a local road. In established communities such
as Oak Bay, collectors are designated based on
historical use.
- Special roads do not fit easily into any categories
because they perform a number of roles. In
addition to being important vehicle routes, they
have other functions that may be environmental
or recreational.
- Local roads are the most common roads within
Oak Bay. Their primary purpose is to serve the
houses that directly abut them.
Schedule C illustrates the current road
classifications. The District is planning to update
some of the roads to different classes in the future.
The road network contains a mix of traditional grid,
modified grid, and cul-de-sacs/non-grid roads. Most
streets are quiet; however, as the number of vehicles
has increased in Oak Bay and throughout the CRD,
traffic and parking on some roads has changed so
that the condition, traffic, and speed are of concern
to residents.
As in many other Canadian municipalities, parking
of automobiles on streets and in public parking lots
takes up a significant amount of land.
The municipal parking lots are subsidized by the
District, with minimal revenues arising from them.
In this sense, such parking is not "free". The District
pays for construction, maintenance, operation, and
enforcement of parking stalls.
The District's parking lots are located throughout the
community.
Several locations including the villages, the Oak Bay
Recreation Centre, Monterey Centre, and a multi-
unit residential area on Haultain Street sometimes
experience significant parking demands. While
some residents request additional parking, a more
sustainable approach may be to provide alternate
forms of transportation to these key destinations.
Parking on residential streets is also a concern to
some residents; there is a perception that parking
congestion on streets is associated with unregulated
secondary suites.
There are several parking areas located off rear lanes
and one parking lot under a building in the Village,
but the street parking continues to be congested
at peak times. For some new developments in the
Village, the District collected fees for an off-site
parking lot, but this has not yet been constructed.
All of the 13 municipalities in the Capital
Regional District have approved policies
that embrace the complete streets concept.
While various terms are used, such as multi-
modal transportation, active transportation,
alternative transportation, etc., the
concepts are the same. These municipalities
include Saanich, Victoria, Esquimalt, View
Royal, Colwood and Langford. The City of
Vancouver and the City of Calgary follow
similar policies.
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Active Transportation
Residents have expressed an interest in improving
the options for active modes of transportation,
including transit and safe pedestrian and cycling
routes throughout Oak Bay. The 2022 Active
Transportation Strategy integrates regional
connections with neighbouring municipalities,
ensuring a cohesive active transportation network.
It identifies upgrades to pedestrian crossing, traffic
calming, and expanded cycling routes.
Figure 6.2 Active Transportation Network
Transit
Public transit in Oak Bay is provided by BC Transit,
a regional authority (Figure 5.3). Transit currently
focuses on connections between Oak Bay, the
University of Victoria, City of Victoria, and District
of Saanich. BC Transit's Transit Future Plan (2011)
identifies future frequent transit stops, with services
at least every 15-minutes, along Foul Bay Rd and Oak
Bay Ave.
Figure 6.3 Oak Bay Transit Routesii
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Transportation in Development Planning
There are opportunities to support active
transportation through new development projects.
Some options to consider including the provision
of bicycle parking amenities, reductions in parking
stalls where other transportation options and/or
multiple services and amenities exist and charging
stations for electric or hybrid vehicles.
Engagement Insights
Through community engagement, we heard about
the importance of planning for safe, convenient
travel alongside more housing. Participants
suggested improving pedestrian and cycling safety,
working with BC Transit to make it easier and
more convenient to take the bus, and improving
road capacity and parking to accommodate more
residents in Oak Bay.
Transportation Objectives
The transportation objectives of the OCP are as
follows:
1. Design and operate roads in villages as
"complete streets", as adopted by Council policy,
with all users in mind, including pedestrians of
all ages and abilities, vehicles, cyclists, transit,
and motor scooters.
2. Improve sidewalks for better accessibility,
especially in commercial and high-use locations.
3. Address the safety of the road network through
management of speed and road improvements.
4. Provide more and safer options for commuter
and recreational bike routes and infrastructure.
5. Advocate for improved transit services.
6. Address needs for access to the Village, Estevan
Village, other commercial areas, and recreation
centres, balancing business interests with
the move towards additional and diverse
transportation modes.
7. Reduce noise and air quality impacts from
commercial vehicles and buses on residents.
8. Support the transition to electric vehicles
by expanding electric vehicle charging
infrastructure in the District.
Transportation Policies
The transportation policies of the OCP are as follows:
General Policies
T1.
Support the development of complete
streets, which are public spaces that are
safe and comfortable for everyone, whether
walking, rolling, or driving, focusing on key
village centres and corridors where people
need to access shops, services, and daily
needs.
T2.
Consider the following hierarchy when
making decisions regarding transportation
priorities, infrastructure improvements and
spending: walking, cycling, transit, High
Occupancy Vehicles (HOVs) and movement
of goods, Single Occupant Vehicles (SOVs).
T3.
Adopt and implement Transportation
Demand Management strategies and tools in
parallel with the CRD, other municipalities,
and public institutions such as Camosun
College and University of Victoria.
T4.
Apply transportation design and servicing
standards based on universal design to
enable people of all mobility levels to use
sidewalks, bike routes and transit. Prioritize
improvements in locations with higher
concentrations of young children, seniors
and people with disabilities, and places
where residents go to access essential goods
and services.
T5.
Incorporate techniques and controls
in road design to ensure safe and non-
congested roadways, while facilitating ease
of movement for pedestrians, vehicles and
bicycles, e.g., roundabouts/traffic circles,
pedestrian crossings, signals. Monitor these
to ensure effectiveness over time.
T6.
Monitor 'resident-only' parking regulations,
and work with residents to revise these over
time as needed.
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T7.
Engage Oak Bay Village businesses on
strategies for reducing the impacts of
delivery trucks on residents of adjacent
neighbourhoods.
T8.
Collaborate with other municipalities and
businesses on ways to accommodate tourist
buses while minimizing conflicts and impacts
on the community, e.g., use of low- emission
vehicles.
T9.
Encourage more environmentally friendly
vehicular alternatives to single occupancy
vehicles and private car ownership, e.g.,
vanpooling, carpooling / ridesharing, car
co-ops, and high efficiency or clean energy
vehicles.
T10.
Expand the public electric vehicle (EV)
charging network and require all new
developments to include EV-ready charging
capacity to make it easier for people to
transition to electric vehicles.
Active Transportation
T11.
Support and encourage the development of
Oak Bay's pedestrian and cycling networks
as part of an interconnected multi-modal
transportation system within Oak Bay and
to adjacent jurisdictions, consistent with the
District's Active Transportation Strategy.
T12.
Improve pedestrian infrastructure,
connectivity and accessibility, consistent
with the District's Pedestrian and Sidewalk
Masterplan.
T13.
Promote cycling for commuting, personal
transport and recreation purposes through
improvements to infrastructure and facilities,
including bike racks and signs on bike routes,
as identified in the Active Transportation
Strategy.
T14.
Improve way-finding systems (signage and
other methods) to encourage use of Oak
Bay's trails and paths.
T15.
Encourage School District 61 and parent
associations to develop and periodically
update safe route-to-school plans in
consultation with the District.
Transit
T16.
Support BC Transit's Future Transit Plan
to provide frequent and reliable services
along key routes like Foul Bay Road, Oak
Bay Avenue, and to provide opportunities to
connect North and South Oak Bay.
T17.
Encourage BC Transit to continue and
expand programs to schools, businesses and
organizations to encourage increased transit
use by students, employees and seniors.
T18.
Encourage and explore options for other
modes of public transportation to improve
connections within the community, e.g., local
mini-bus loop, village shuttle, potentially
operated by a community or business group.
T19.
Work towards making all transit stops
universally accessible, safe and comfortable
by providing adequate seating, lighting
and weather protection and ongoing
maintenance of facilities.
Transportation in Development Planning
T20.
Create a Transportation Demand
Management (TDM) bylaw to require new
developments to support sustainable
transportation. This could include bike and
car share parking with charging stations,
subsidized transit passes, and end-of-trip
facilities like showers, lockers, and change
rooms.
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6.2. Utilities, Infrastructure
and Services
How this chapter relates to the OCP Vision of
Community Health & Resilience:
- Improving infrastructure efficiency and
sustainability
- Reducing waste and water and energy use
- Supporting long term infrastructure needs
- Reducing operational costs
Overview
The District's Engineering and Public Works
Department designs, builds, maintains and is
responsible for the District's physical infrastructure
assets. These include water mains, storm sewers,
sanitary sewers, roads, streetlights, sidewalks, public
amenities, vehicle fleets, and solid waste collection
infrastructure.
The District has been working towards reducing
energy use and greenhouse gas emissions in its
delivery of services. For example, the District is
using trenchless technology (instead of excavation)
where possible when it needs to replace pipes, which
reduces carbon emissions.
Trenchless technology involves methods,
materials, and equipment for the installation
or renewal of underground infrastructure
with minimal disruption to surface traffic,
business, and other activities. Methods include
tunneling and horizontal directional drilling.
Some services are shared with Saanich and Victoria
in order to maximize efficiency. These shared service
agreements pertain to police, fire, and emergency
communications, as well as water, stormwater and
sewer in some locations.
The District provides residents with bi-weekly
garbage and kitchen organic waste collection, while
the CRD is responsible for recycling services, and
providing disposal sites for solid waste and compost.
The Oak Bay Police Department has protected
residents since 1906 and contracts with the Saanich
Police Department for major crime investigations.
The Oak Bay Fire Department has provided
emergency and non-emergency services since 1937
(see section 6.3 Risk and Resilience). Although the
District operates a professional Fire Department
it remains a small department with limited staff
available for immediate response. These limitations
are relevant considerations for new development.
Oak Bay's utilities play a vitally important role in
supporting the community. Oak Bay maintains an
inventory of and actively monitors its underground
services, prepares a schedule of repair and
maintenance to address priorities, and completes
annual plans and budgets for the renewal process.
Like other communities worldwide that were
founded more than 100 years ago, a significant
amount of the District's underground infrastructure
is in its latter years of service, and the need for repair
and replacement exceed the available resources.
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In 2021, Oak Bay completed a Sustainable
Infrastructure Replacement Plan as a roadmap
for addressing the significant funding and
replacement challenges associated with aging public
infrastructure. It includes recommendations to
increase the reserve contributions and replacement
of infrastructure over 25 years.
Residents also have an important role in helping
Oak Bay to become a more sustainable community.
For example, reducing household waste decreases
the impacts of disposal, collection, transportation,
and processing of the waste. Water and energy
conservation also reduce the needs for services and
impacts on infrastructure and the environment.
In early 2025, the District adopted a Development
Cost Charge (DCC) Bylaw. This tool helps the District
recover (from developers) the costs of off-site
infrastructure needed for growth.
Roads
The road network is described in Section 6.1. The
District budgets and allocates funds for annual road
repair and maintenance. This includes sidewalk
replacement; ramps and curb-drops are now
standard practice.
Sanitary Sewers
The District's sewer collection system conveys
sanitary sewage through a series of pipes and pump
stations, the most significant of which is the Currie
Road pump station, for primary treatment and
discharge into the ocean. As part of the regional
wastewater treatment plan, the Currie Road pump
station and conveyance pipe is proposed to be
upgraded, with other conveyance upgrades to
transmit sewage to a proposed secondary treatment
plant.
A major ongoing issue for Oak Bay is the inflow and
infiltration of stormwater into the regional sanitary
system, which the provincial government has
required to be eliminated over time. Oak Bay has
been replacing old pipes with new plastic pipes on
an ongoing basis, to control the amount of inflow
and infiltration from public property.
Oak Bay has also eliminated the combined sewers
in the Humber catchment of the Uplands and will
eliminate the combined sewers in the Rutland
catchment in the future. The District's cost-sharing
of sewage treatment is the highest per capita, due
in part to the combined sewer/storm system in the
Uplands neighbourhood.
Although the Tangible Capital Assets analysis
includes calculations of sewer system improvements
based on pipe replacement, there is a much less
expensive alternative. Most sewer pipes can be
rehabilitated with liners, and this is the method that
the District is currently using where possible.
Storm Sewers
Oak Bay's storm sewer system includes many older
pipes, direct outfalls to creeks and the ocean, and
combined storm/sanitary sewers in the Rutland
catchment of the Uplands. Storm sewer pipes are
generally in worse condition than sanitary sewer
pipes as they are subject to mechanical damage from
rocks and other debris. They can be rejuvenated with
liners where the pipes are intact enough to support
that.
The stormwater system largely has sufficient
capacity to accommodate the proposed population
growth. The housing growth proposed in this OCP
will require a review of the stormwater management
plan for the District to ensure that the system can
handle flows from new development. Once the
District implements rainwater management to a
greater degree, there will be less demand on the
system. Rainwater management typically involves
some attenuation and treatment of runoff prior to
discharge into creeks or the ocean where possible.
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Solid Waste Management
The District collects solid waste, which is directed
to the Hartland landfill operated by the Capital
Regional District. Curbside recycling and garden
waste are collected by a private operator and
transported to a sorting depot on Vancouver Island.
Oak Bay also operates a municipal yard and
recycling facility. This facility is highly valued by the
community because it is convenient, tax-funded,
it allows disposition of excess refuse (beyond the
bi-weekly pick-up allowances), and the facility
encourages conscientious recycling. Paint, batteries
and other materials are recycled at the yard.
Recycling soft plastics and other specific materials
is available through third party community-based
monthly drop-off depots.
"Zero waste" is a goal and practice to guide people
in emulating sustainable natural cycles, where all
discarded materials are resources for others to
use. While Oak Bay may not be ready to commit
to becoming a zero waste municipality, it has the
opportunity to move towards that goal, and to
use zero waste principles to influence municipal
decisions such as purchasing, and to educate,
inform, and facilitate community decisions to
reduce, reuse and recycle. One specific opportunity
is for event organizers to run zero waste events as a
model and inspiration for others.
Zero waste means designing and managing
products and processes to reduce the volume
and toxicity of waste and materials, conserve
and recover all resources, and not burn or
bury them.
Water
Water is provided to the District from the CRD,
and pump stations direct it to higher ground for
distribution to the community. The volume and
pressure in the water system are generally good. The
region's primary water supply from the Sooke Lake
Reservoir is very secure and has sufficient quantity
to serve future regional growth, including the District
of Oak Bay. The District is gradually replacing and
repairing water pipes, using liners and replacing old
cast iron and asbestos cement pipes. This is helping
to conserve water by reducing leaks in the system.
The District is assessing the need for secondary
water connection for emergency purposes, from City
of Victoria and District of Saanich.
Shoreline Management
Some areas of the shoreline are eroding. This is
most significant in McNeill Bay, and there is also
some erosion in the Willows Beach area. The
District is monitoring shoreline erosion, conducts
mitigation on an annual basis, and has established a
contingency fund to address the issue.
Lighting
The District has been implementing some 'dark
sky' lighting in public areas, and using more energy
efficient lighting. Cattle Point is designated as an
Urban Star Park by the Royal Astronomical Society of
Canada and is a destination for star gazing.
Dark sky lighting principles are quite
straightforward; light when you need it,
where you need it, and no more. The dark-
sky movement is a campaign to reduce light
pollution. The advantages of reducing light
pollution include an increased number of
stars visible at night, reducing the effects of
unnatural lighting on the environment, and
cutting down on energy use.
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Engagement Insights
Community engagement highlighted the importance
of improving infrastructure capacity, especially
while planning for additional housing and climate
change impacts. There were suggestions to
prioritize upgrades to aging systems, expand green
infrastructure, and mitigate property tax impacts.
Utilities and Services Objectives
The utilities and services objectives of the OCP are as
follows:
1. Renew and develop Oak Bay's engineering
infrastructure and utilities in sustainable ways to
meet the community's needs.
2. Improve the level and quality of services
continuously.
3. Reduce energy use and greenhouse gas
emissions in the delivery of services.
4. Encourage the investigation of shared services
where this can increase efficiency.
5. Plan for and undertake shoreline management.
6. Use and require "dark sky" street and building
lighting to reduce light pollution.
Utilities and Services Policies
The utilities and services policies of the OCP are as
follows:
General Policies
US1.
Maintain and extend shared service
agreements with other municipalities and
the CRD where efficient and practical.
US2.
Coordinate with CRD engineering services
to align infrastructure planning, including
water, sewer, and stormwater systems, with
the growth areas identified in the OCP to
ensure that upgrades effectively support
anticipated development.
US3.
Repair and replace water and sewer lines in
alignment with the Sustainable Infrastructure
Replacement Plan, Sanitary Sewer Master
Plan and Storm Drain Master Plan.
US4.
Require new developments to contribute to
or include necessary infrastructure upgrades
for transportation, water, drainage and sewer
services per the Development Cost Charges
Bylaw.
US5.
Consider energy consumption and
greenhouse gas emissions in the purchase of
District vehicles, tools and equipment and in
maintenance and operations.
US6.
Reduce water use and waste generation to
the degree possible in municipal operations.
US7.
Continue to implement and expand the road
maintenance program.
US8.
Update engineering and building bylaws in
accordance with this OCP and a renewed
Zoning Bylaw, ensuring that the various
bylaws are synchronized.
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Sanitary and Storm Sewers
US9.
Incorporate innovative rainwater
management techniques into major civic
projects, per the proposed Rainwater
Management Policy.
US10. Require all new developments to include
a stormwater management plan that
uses innovative rainwater management
techniques that aim to detain and treat
rainwater flows prior to discharge into the
sanitary storm system or water bodies.
Update relevant bylaws--such as the public
sewer bylaw--to reflect best practices and
ensure alignment with major civic projects.
US11. Finalize plans for and undertake the
separation of the Uplands combined sewer
system in Rutland catchment.
Green Infrastructure
US12. Continue to require new climate-resilient
green infrastructure on private and public
land. This includes rain gardens, shallow
channels that soak up rainwater (bioswales),
green roofs, and permeable surfaces that let
water pass through.
Solid Waste Management
US13. Consider improving traffic circulation at the
municipal yard and recycling facility and
expanding its hours on the weekend.
US14. Promote household and business diversion
of recyclables and compostable waste to
minimize landfill waste.
Water
US15. Construct secondary water connections for
emergency purposes.
Shoreline Management
US16. Conduct a shoreline assessment of the
McNeill Bay area, and other locations as
required, to identify options for shoreline
and seawall stabilization.
Lighting
US17. Establish Oak Bay as a "dark sky" community
and limit illumination of the night sky and
light trespass, balancing this with the need
to light high-use sidewalks and paths for
safety reasons.
US18. When District lamp standards are being
replaced, consider energy consumption and
dark sky principles without compromising
light levels required for pedestrian
safety. Explore the potential for shorter,
more energy efficient lights for new or
replacement street lighting.
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6.3. Risk and Resilience
How this chapter relates to the OCP Vision of
Community Health & Resilience:
-
Saving lives
-
Preserving the environment
-
Protecting property
-
Building broad community networks and
partnerships
Overview
The District of Oak Bay is committed to improving
community resilience by anticipating and responding
to climate change, natural hazards, and physical,
social, and economic disruptions. Managing risk
extends beyond emergency response planning to
include risk assessment, land use policy, mitigation,
business continuity and recovery. The District has
an Emergency Response and Recovery Plan that
is updated every five years. The Plan is based on
the four principles of emergency management:
mitigation, preparedness, response and recovery
(Figure 6.4).
The delivery of protective and emergency
management services in Oak Bay is community-
focused. The emergency program, and fire and police
departments, have tailored their programs and
priorities to align with the needs of residents and
businesses in the District.
Hazardous Conditions
Emergency management in Oak Bay considers the
entirety of the District including all lands, facilities,
infrastructure, businesses, institutions, federal
and provincial lands, and addresses all types of
potential emergencies including earthquakes, severe
storms or major fires. The 2024 Community Risk
Assessment: Hazards, Vulnerabilities and Risk of
Major Emergencies identifies that Oak Bay's highest
risk hazards are atmospheric hazards or extreme
weather events, human disease, and utility failure.
This is followed by earthquakes, flooding, tsunamis
and fires.
The District is located within Seismic Zone 5. This
area is at risk of a damaging earthquake that could
threaten critical infrastructure such as sewers, water
mains, gas mains, power lines, roads, municipal
buildings, service facilities and institutions. Figure
5.6 illustrates the Composite Relative Earthquake
Hazard Map. Amplification factors refer to the
extent to which amplification factors (not the actual
amount of earthquake ground motion) can vary with
different strengths and periods of ground motion.
The amplification factors on this map do not exceed
the seismic design criteria of the current building
code but could be significant for structures not built
to the current code. Low to high hazard is applied to
areas with insufficient data to assign a more specific
hazard rating.
There is one location in Oak Bay that is known to
have geological instability (see Schedule F). Sea level
rise is also a consideration, as noted in Section 2.6
Climate Change and Energy.
In 2021, the CRD conducted a Coastal Flood
Inundation Mapping project to better understand
regional impacts from coastal storm flooding due to
sea level rise and tsunamis. Specific findings for Oak
Bay include an increasing vulnerability to coastal
flooding due to sea level rise (SLR) and potential
tsunami events. Detailed flood modeling for McNeill
Bay and surrounding areas indicates that rising mean
sea levels will significantly impact low-lying zones.
Tsunami modelling shows that certain areas could
experience flooding, especially if an earthquake
occurs along the Cascadia Subduction Zone. These
events could cause water levels to rise significantly.
Similarly, in 2021 the CRD conducted a Regional
Heat Mapping project to identify areas vulnerable to
extreme heat. When looking at demographic factors
contributing to heat vulnerability, the study found
that approximately 22% of Oak Bay's population is
in very high sociodemographic vulnerability; mainly
due to the population over the age of 65 and homes
built before 1960.
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Risk and Resilience Objectives
The risk and resilience objectives of the OCP are as
follows:
1. Protect public safety, health, the environment,
critical infrastructure, property and economic
stability by hazards, managing risk and preparing
for emergencies.
2. Promote municipal and community resilience
through education on the implementation of
improved mitigation and preparedness practices.
Risk and Resilience Policies
The risk and resilience policies of the OCP are as
follows:
RR1.
Implement a Shorelines Development
Permit Area (Schedule E) that includes
considerations related to sea level rise.
RR2.
Implement a Hazardous Conditions
Development Permit Area (Schedule F)
that includes considerations related to
geotechnical hazards.
RR3.
Prepare plans and policy to respond to, and
recover from, a major emergency/disaster
that considers risk assessment through an
all-hazards approach.
RR4.
Continually update the emergency plan
through applications of a hazard, risk and
vulnerability assessment, and address the
risk assessment results through bylaws and
policy direction to mitigate the identified
risk.
RR5.
Consider emergency management
planning and mapping to include critical
infrastructure and vulnerable populations in
the community.
Figure 6.4 The Four Principles of Emergency Management
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RR6.
Incorporate natural hazard risk
assessments into the planning and location
of critical infrastructure, such as municipal
services, transportation and utilities.
RR7.
In land use decision-making, consider
and address natural hazards, including
earthquake, tsunami risk, severe weather
events, soil erosion, fault lines and flooding.
RR8.
Encourage new developments to assess
climate and natural hazard risks, such as
flooding, extreme heat, earthquake or
wildfire, and show how the site design,
building, and landscaping will reduce those
risks.
RR9.
Continue to develop a detailed
understanding of property, infrastructure
and assets at risk of sea level rise, flooding
and coastal inundation. Explore context-
specific solutions like establishing flood
construction levels, identifying areas for
managed retreat in high-risk areas, or
investing in engineered responses.
RR10. Prepare and adopt policy and incentives
for seismic upgrades to commercial and
residential designated heritage buildings.
RR11. Consider incentives to non-heritage
properties for seismic upgrading in their
buildings.
RR12. Promote drought-tolerant and fire-resistant
landscaping in both public and private
developments.
RR13. Actively promote and foster new emergency
management partnerships with local,
regional, provincial governments, non-
government agencies, and community
organizations to encourage coordination of
emergency management in the CRD.
RR14. Explore opportunities for cooling and misting
stations in public spaces to help minimize
impacts of extreme heat events.
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7.Development
Approval
Information
Required
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7.1. Development Approval
Information
Purpose
The establishment of a Development Approval
Information Area (DAIA) gives local government the
authority to require information about the potential
impacts a proposed land use or development
may have on the environment and municipal
infrastructure before approval is considered. To use
the DAIA authority the Municipality must, by bylaw,
establish procedures and policies governing when
it can require development approval information
and what information may be required. The
bylaw will also set out procedures for requesting
reconsideration of DAIA requirements and
circumstances where a public information meeting
may be required.
Designation
Pursuant to Section 485(1) of the Local Government
Act, all lands within the boundaries of the District
of Oak Bay are designated a Development Approval
Information Area (DAIA).
Objectives
-
To ensure potential impacts of proposed
development are identified and documented as
part of the development review process.
-
To ensure the Municipality has relevant and
reliable information to properly assess and
mitigate conditions resulting from proposed
development.
-
Where potential negative impacts are identified,
the Municipality may require the applicant
to address and mitigate the impacts before
development approval is granted.
Application
As outlined in Section 484 of the Local Government
Act, development approval information may be
required under any of the following circumstances:
1. An application for any of the following:
-
A change in Official Community Plan land
use designation
-
A change in zoning
-
A development permit
-
A temporary use permit
2. The development may result in impacts on:
-
The natural environment
-
Access to public space
-
Impact on significant views
-
Loss of privacy or sunlight on adjacent
properties
-
Affordable and inclusive housing
-
Identified heritage resources and
archaeological resources
-
Public facilities such as schools and parks
3. Community services
-
Transportation patterns and traffic flow
-
Infrastructure including sewer, water,
roads, drainage, street lighting, and other
infrastructure
-
Energy flows and greenhouse gas emissions
The development could result in other impacts
that may be of concern to the residents of Oak Bay,
District staff or Council.
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7.2. Temporary Use Permits
Purpose
Temporary use permits allow a use of land that is
not otherwise permitted in the Zoning Bylaw to
be authorized on a temporary basis through the
issuance of a temporary use permit.
Designation
Pursuant to Section 492 of the Local Government Act,
all lands within the boundaries of the Municipality of
Oak Bay are designated as an area where temporary
uses may be permitted.
Application
1. Council (or Council's delegate) may issue a
temporary use permit for a period of up to three
years, renewable only once. Upon expiry of the
permit, the temporary use must cease.
2. Temporary use permits may be issued to allow:
-
Seasonal or occasional uses on land zoned
for institutional uses including District parks.
-
Seasonal or occasional uses in residential
areas where adjacent properties will not be
impacted by smoke, noise, vibration, dust,
glare, odour or other negative impacts.
-
Temporary housing.
-
Any other temporary use not otherwise
permitted by the Zoning Bylaw.
3. Prior to issuing a temporary use permit Council
or Council's delegate must be satisfied that:
-
The temporary use qualifies under one of the
above criteria
-
Potential adverse impacts on adjacent and
surrounding properties will be appropriately
managed
-
The temporary use will not result in
permanent facilities and land alterations
that will encourage non-compliance with the
Zoning Bylaw once the temporary use permit
has expired
-
The Applicant will return the land to a
condition conducive to the uses it is zoned
for
4. Temporary use permits may include terms and
conditions related to the temporary use and
security may be required to ensure any land
altered is returned to its original condition and
structures and facilities established for the
temporary use are removed upon expiry of the
permit.
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8.Development
Permit Areas
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8.1. Introduction
The Local Government Act Section 488(1) provides
municipalities with the authority to establish
Development Permit Areas (DPAs). Development
permit areas are an effective tool for the protection
of environmentally sensitive areas, managing
development in hazardous conditions, and setting
out expectations regarding the 'form and character'
of certain types of development.
Oak Bay has some important creek corridors and
shorelines with high environmental values, and
there are lands that contain potentially hazardous
conditions. Establishing these as DPAs provides the
District the opportunity to manage the development
process with consideration for these environmental
resources and geological conditions.
With the changes included in this OCP, the District
anticipates an increase in the flow of development
applications for mixed-use, commercial and multi-
unit residential and infill housing projects compared
with that of the last several years. The DPAs that
include design guidelines for these development
applications will provide staff and Council with
a framework for guiding and responding to
development proposals.
This Plan sets out the designations, justification,
objectives, application/exemptions and guidelines
for each DPA.
8.2. Natural Environment
Development Permit
Areas
Introduction
Oak Bay residents care deeply about natural areas,
including creeks and the shoreline. Development
permit areas for the natural environment will help
to protect the integrity of ecosystems while allowing
appropriate development to occur.
This will further the vision and goals of the OCP,
helping to balance environmental protection with
increased development.
8.2.1 Watercourses Development
Permit Area
.1
Designation
Areas outlined on Schedule D: Watercourses
Development Permit Area (DPA) are properties that
contain areas designated under Local Government
Act Section 488(1)(a), for protection of the natural
environment, its ecosystems and biological diversity.
The DPA itself includes the following, as defined in
the provincial Riparian Areas Protection Regulation:
-
the 30 m strip on both sides of the watercourse
measured from the high water mark, based
on the definition of "high water mark" in the
Riparian Areas Protection Regulation.
-
for a 3:1 (vertical/horizontal) ravine less than
60 m wide, the strip on both sides of the
watercourse measured from the high water mark
to a point that is 30 m beyond the top of the
ravine bank.
-
for a 3:1 (vertical/horizontal) ravine 60 m wide or
greater, a strip on both sides of the watercourse
measured from the natural boundary to a point
that is 10 m beyond the top of the ravine bank.
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.2
Justification
Bowker Creek is a highly valued urban creek that has
been the subject of extensive study and a long-term
restoration and enhancement plan, as described in
Section 4. Oak Bay also contains the upper reaches
of Hobbs Creek. Hobbs Creek begins just east of
Henderson Park and flows north through Saanich
to Cadboro Bay. These creeks and their adjacent
riparian areas offer important fish habitat and
aquatic habitat for wildlife.
When in a natural state, riparian areas are biodiverse
areas that support a wide variety of wildlife,
contribute to the health of adjacent streams and fish
habitat through shading, stream bank stabilization,
the maintenance of water quality, and the provision
of food, nutrients, organic matter, and large woody
debris. As development can impact the function of
riparian areas by altering environmental features and
natural processes, the Watercourses DPA is intended
to minimize the impacts of new development along
Bowker Creek and Hobbs Creek and to maintain or
restore riparian functions and ecosystems along
these creeks.
.3
Objectives
The following are the objectives of the Watercourses
DPA:
1. To implement the Riparian Areas Protection
Regulation.
2. To preserve and protect aquatic and riparian
habitat in order to support species biodiversity
and natural ecological function.
3. To guide development to occur in a manner that
minimizes environmental impacts upon aquatic
and riparian habitat, fish and wildlife, and
encourages the restoration and enhancement
of aquatic and riparian habitat so that it can
provide corridors for wildlife movement and
support fish life processes.
.4
Application
As provided in Section 489 of the Local Government
Act, unless exempted under 8.2.1.5 below, a
development permit must be approved prior to:
1. Subdivision.
2. Construction of, addition to or alteration of a
building or other structure.
3. Land alteration.
.5
Exemptions
Pursuant to Section 488(4) of the Local Government
Act, the following do not require a development
permit:
1. Repair and maintenance of existing legal or
legal non-conforming buildings, structures or
utilities provided there is no alteration of land or
vegetation, and the work does not impact access
provisions to the property.
2. The construction of a fence if no native trees
are removed and the disturbance of native
vegetation is restricted to 0.5m either side of the
fence.
3. Ecological restoration and enhancement
projects, parks and works services undertaken or
authorized by the Director of Parks, Recreation
and Culture, the Capital Regional District, or the
Province of BC.
4. Construction, maintenance or operation of
municipal works and services undertaken or
authorized by the Corporation of the District of
Oak Bay, provided that an assessment of the
riparian area is completed by a QEP and that
all works are conducted in accordance with the
recommendations of the QEP.
5. Removal of trees deemed to be hazardous and a
threat to immediate life or safety, as determined
by a certified Arborist.
6. Small-scale removal by hand of invasive species
or noxious weeds.
7. Larger-scale removal of invasive species or
noxious weeds in accordance with a vegetation
management plan prepared by a Registered
Professional Biologist, certified Arborist or
ATTACHMENT 1
District of Oak Bay - Official Community Plan | 103
Qualified Environmental Professional, and
measures are taken to avoid sediment or debris
being discharged into a watercourse and the
area is replanted immediately in accordance with
established best management practices.
8. The placement of non-permanent structures,
such as benches, tables and garden ornaments
and gardening and yard maintenance activities,
such as lawn mowing, tree and shrub pruning,
vegetation planting and minor soil disturbances
that do not alter the general contours of the land.
Tree pruning must be conducted in accordance
with the District's Tree Protection Bylaw.
9. The construction of a small accessory building,
such as a gazebo, garden shed or playhouse, if all
the following apply:
-
The building is located in an existing
landscaped area;
-
No native trees are removed;
-
The total area of small accessory buildings is
less than 10m2; and,
-
The building is located a minimum of 10
metres from the high water mark or the
stream or, where the stream is located in a
ravine, 10 metres from the top of bank.
10. The construction of a trail if all the following
apply:
-
The trail is 1m wide or less;
-
No native trees are removed;
-
The surface of the trail is pervious (e.g. soil,
gravel or wood chips);
-
The trail is designed to prevent soil erosion
where slopes occur; and,
-
Where the trail parallels the stream, the trail
is more than 5 metres from the high water
mark of the stream or, where the stream is
located in a ravine, 5 metres from the top of
bank.
11. Emergency actions required to prevent, control
or reduce an immediate threat to human life, the
natural environment, archaeological resources,
or public or private property including:
-
Forest fire, flood, and erosion protection
works;
-
Protection, repair or replacement of public
utilities;
-
Clearing of an obstruction from a bridge,
culvert, dock, wharf or stream;
-
Bridge repairs; and,
-
Removal of hazardous trees as determined
by a certified Arborist.
.6
Guidelines for Watercourses Development
Permit Area
Development permits issued in the Watercourses
DPA shall be in accordance with the following
guidelines:
1. No development shall occur within a Streamside
Protection and Enhancement Area (SPEA) except
for the following:
-
Works authorized by the Minister of Fisheries
and Oceans or a regulation under the
Fisheries Act (Canada); and,
-
Works and activities that comply with the
laws, regulations and best management
practices of the Water Sustainability Act, for
example bank repairs, stormwater outfalls,
road crossings, footbridges and pipeline
crossings.
2. The width of the SPEA will be determined by
a Qualified Environmental Professional (QEP)
who has prepared and submitted an assessment
report in accordance with the requirements of
the Riparian Areas Protection Regulation. The
QEP must also address the guidelines of this
Watercourses DPA.
3. Notwithstanding guidelines 1 and 2 above,
where disturbance within the SPEA cannot be
avoided due to site conditions, the QEP shall
make recommendations on suitable mitigation
or restoration options to improve the quality of
the remaining SPEA including, but not limited to:
-
Recommended strategies and measures to
protect the SPEA prior to site disturbance,
during the construction process, and post
construction;
ATTACHMENT 1
District of Oak Bay - Official Community Plan |
104
-
The addition of new areas to the SPEA to
replace those areas where the SPEA cannot
be met; and,
-
Restoration and enhancement measures for
remaining areas of the SPEA to increase the
quality of functional riparian habitat.
4. Where necessary, zoning variances and
relaxations to other bylaw requirements, (e.g.
building setbacks, parking requirements) may
be considered in order to prevent the loss of
habitat within the Watercourses DPA, to facilitate
the protection of the SPEA, and to encourage
development on portions of the site that are
least environmentally sensitive.
5. The following measures should be taken to
ensure that development outside of the SPEA but
within the Watercourses DPA does not negatively
impact the riparian habitat of the SPEA and the
water quality and hydrology of the stream:
-
Maintain hydrological characteristics that
emulate the pre-development state of the
land, including:
-
Minimize impervious surfaces;
-
Return stormwater runoff from
impervious surfaces of the development
to natural hydrologic pathways in
the ground to the extent reasonably
permitted by site conditions, and treat,
store and slowly release the remainder
per the specifications of the Subdivision
and Development Bylaw, No. 3578, as
may be updated or replaced from time
to time;
-
Minimize the alteration of contours of the
land outside the areas approved for buildings,
structures, and site access by minimizing the
deposit of fill and the removal of soil;
-
Minimize the removal of native trees outside
the areas approved for buildings, structures,
and site access;
-
Develop and implement a soil erosion and
sediment control plan as part of site design
and construction to prevent the discharge of
sediment-laden water into the stream;
-
Install temporary fencing and signage to
prevent encroachment into the SPEA during
construction; and,
-
Address terrain stability concerns that may
impact the SPEA.
6. Additional measures may also be required
depending on the degree of potential impacts of
the development on the SPEA and the condition
of the SPEA including, but not limited to:
-
Planting of native vegetation and removal
of invasive non-native vegetation within
the SPEA in accordance with a habitat
restoration plan prepared by a QEP;
-
Where a net benefit for fish and riparian
habitat can be demonstrated, in-stream
works, stream daylighting, the creation
of wetlands, and the replacement of hard
structures such as walls with landscape
solutions in accordance with the
recommendations of a QEP and subject to
approval from applicable provincial and
federal government agencies;
-
Environmental monitoring during the
construction phase;
-
Installation of a permanent fence to
demarcate the SPEA;
-
Reduction of windthrow hazard within the
SPEA;
-
Registration of a natural state covenant over
the SPEA;
-
Dedication of the stream to the Corporation
of the District of Oak Bay; and,
-
For land in a natural or naturalized condition,
retain existing vegetation, topography and
hydrology to the degree possible.
7. For subdivisions where detailed building plans
do not yet exist, the QEP shall provide advice on
environmental monitoring and measures that
may need to be considered at building stage,
including whether another assessment should
be undertaken.
8. Design outdoor lighting and select outdoor
light fixtures based on dark sky principles, e.g.,
shielded to direct light downward to ground
surfaces only and avoid direct lighting of building
faces and trees.
ATTACHMENT 1
District of Oak Bay - Official Community Plan | 105
8.2.2. Shorelines Development Permit
Area
.1
Designation
Areas outlined on Schedule E: Shorelines
Development Permit Area (DPA) are properties that
contain areas designated under Local Government
Act Section 488 (1) (a) for protection of the natural
environment, its ecosystems and biological
diversity; and Section 488 (1) (b) for the protection of
development from hazardous conditions.
The Shorelines DPA itself includes the following:
1. All those upland and foreshore areas measured
horizontally above and below and within 15
metres of the natural boundary of the sea,
including the entire shoreline forming the south
and east boundaries of Oak Bay.
.2
Justification
Oak Bay has an abundance of ocean shoreline. It
is very diverse, including the long sandy Willows
Beach, rocky headlands, offshore islands, and rich
intertidal habitats at McNeill and Gonzales Bays. The
shoreline offers biologically rich and diverse habitat
for waterfowl, raptors, shellfish, marine mammals,
and smaller marine creatures.
In addition to its ecological importance to an array
of aquatic species, the ocean shoreline has a key
role in natural systems such as ocean processes,
erosion control and flood management, dissipating
wave energy and managing the risks from sea level
rise. Setbacks from the marine foreshore and higher
construction elevations will become increasingly
important as sea level rise elevates the risk of coastal
flooding and erosion.
.3
Objectives
The following are the objectives of the Shorelines
DPA:
1. To plan and regulate new development in a
manner that preserves and protects aquatic and
shoreline habitat in order to support species
biodiversity and natural ecological function, as
well as the economic vitality of fisheries.
2. To protect the integrity of the foreshore,
shoreline and natural coastal and intertidal
processes.
3. To conserve and manage the foreshore as a
public resource in a manner that does not
compromise the ecological integrity of the
shoreline.
4. To protect development from erosion and
flooding associated with sea level rise and storm
surges.
.4
Application
As provided in Section 489 of the Local Government
Act, unless exempted under 8.2.2.5 below, a
development permit must be approved prior to:
1. Subdivision.
2. Construction of, addition to or alteration of a
building or other structure.
3. Land alteration.
.5
Exemptions
Pursuant to Section 488(4) of the Local Government
Act, the following do not require a development
permit:
1. Repair and maintenance of existing legal or
legal non-conforming buildings, structures or
utilities provided there is no alteration of land or
vegetation and the work does not impact access
provisions to the property.
2. Routine maintenance of existing hardened
foreshore structures provided that no new
material (other than replacement material)
is added to the structure and no materials
are taken away. The works must not alter the
footprint, including the height or slope, of
the existing structure. The property owner
is responsible for contacting Provincial and
Federal governments, as applicable, to secure
permission and determine conditions that
must be met. The District must be notified of
the proposed works and all senior government
agency approvals must be provided to the
District to support the exemption.
District of Oak Bay - Official Community Plan |
106
3. The construction of a fence if no native trees
are removed and the disturbance of native
vegetation is restricted to 0.5m either side of the
fence.
4. Ecological restoration and enhancement
projects, parks and works services undertaken or
authorized by the Director of Parks, Recreation
and Culture, the Capital Regional District, or the
Province of BC.
5. Construction, maintenance or operation of
municipal works and services undertaken or
authorized by the Corporation of the District of
Oak Bay.
6. Removal of trees deemed to be hazardous and a
threat to immediate life or safety, as determined
by a certified Arborist.
7. Small-scale removal by hand of invasive species
or noxious weeds.
8. Larger-scale removal of invasive species or
noxious weeds in accordance with a vegetation
management plan prepared by a Registered
Professional Biologist, certified Arborist or
Qualified Environmental Professional, and
measures are taken to avoid sediment or debris
being discharged into the foreshore and the area
is replanted immediately in accordance with
established best management practices.
9. The placement of non-permanent structures,
such as benches, tables and garden ornaments
and gardening and yard maintenance activities,
such as lawn mowing, tree and shrub pruning,
vegetation planting and minor soil disturbances
that do not alter the general contours of the land.
Tree pruning must be conducted in accordance
with the District's Tree Protection Bylaw.
10. The construction of a small accessory building
such as a gazebo, garden shed or playhouse, if all
the following apply:
-
The building is located in an existing
landscaped area;
-
No native trees are removed;
-
The total area of small accessory buildings is
less than 10m2; and,
-
The building is located a minimum of 10
metres from the natural boundary of the sea
or, where the bank has a slope greater than
3:1, 10 metres from the top of bank.
11. Emergency actions performed by federal,
provincial, regional or District staff required
to prevent, control or reduce an immediate
threat to human life, the natural environment,
archaeological resources, or public or private
property including:
-
Forest fire, flood, and erosion protection
works;
-
Protection, repair or replacement of public
utilities;
-
Clearing of an obstruction from a bridge,
culvert, dock, wharf or stream;
-
Bridge repairs; and,
-
Removal of hazardous trees as determined
by a certified Arborist.
.6
Guidelines for Shorelines Development
Permit Area
Development permits issued in the Shorelines DPA
shall be in accordance with the following guidelines:
1. Preserve the foreshore ecosystem and ecological
processes within the Shorelines DPA, including
existing vegetation, topography, natural features,
drainage and hydrology and natural sediment
or detritus movement (accretion and erosion),
except in accordance with the conditions of
an approved Development Permit per the
guidelines of the Shorelines Development Permit
Area and any applicable Provincial or Federal
requirements.
2. If suitable areas of land for the use intended
exist on the property outside the Shorelines DPA,
the proposed development should be directed
to those areas to the greatest extent possible
in order to minimize loss of marine foreshore
habitat. Where necessary, zoning variances and
relaxations to other bylaw requirements (e.g.
building setbacks, parking requirements) may
be considered in order to facilitate the siting of
development outside of the Shorelines DPA.
District of Oak Bay - Official Community Plan | 107
3. Where there has been significant disturbance
within the Shorelines DPA, consider
opportunities to restore and enhance the
foreshore habitat in accordance with the
recommendations of a Qualified Environmental
Professional experienced in shoreline
ecosystems.
4. Provide a minimum 15 metre setback from
the natural boundary of the sea for new
buildings and structures, additions to existing
buildings and structures, or the placement and
removal of fill, other than beach nourishment
fill, except where a Qualified Environmental
Professional experienced in shoreline
ecosystems demonstrates a lesser setback is
appropriate. Such assessments shall include
recommendations for protection and restoration
required to minimize habitat disruption and
to protect against flooding, erosion and slope
failure.
5. New roads or driveways shall not be located
within the Shorelines DPA. If such a location
cannot be avoided, encroachment shall be
minimized and the design and construction
of the road or driveway shall be supervised
by a Qualified Environmental Professional
experienced in shoreline ecosystems.
6. All occupied areas of buildings shall be
constructed at an elevation at or greater than an
appropriate flood construction level established
by a Qualified Coastal Professional and that
takes into consideration the expected effects
of sea level rise on the foreshore. For clarity,
parking, loading and storage areas may be
located below this elevation.
7. Development must be undertaken and
completed in such a manner as to minimize
the extent of excavation and to prevent the
release of sediments or pollutants onto the
marine foreshore or to any watercourse or storm
sewer that flows to the marine shoreline. A
construction management plan prepared by a
Qualified Coastal Professional may be required
where there are significant environmental
features or assets on the property that require
protection.
The plan should identify areas to be fenced
off during construction, best management
practices for minimizing silt runoff onto the
foreshore and other strategies to preserve
natural environmental features and/or reduce
construction impacts.
8. Consider the use of non-toxic and
environmentally sustainable building materials
within the Shorelines DPA to preserve and
protect marine foreshore and aquatic habitat.
9. Parking areas should be placed away from
the foreshore, buffered or landscaped, and
constructed to minimize erosion and water
pollution by controlling stormwater runoff
through measures such as catch basins, oil
separators, filtration trenches or swales, or
unpaved or permeable all weather surfaces.
10. Impermeable surfacing within the Shorelines
DPA should be minimized.
11. Landscaping for new development should be
selected in concert with the recommendations
of a Qualified Environmental Professional
and should retain natural vegetation and
emphasize native plant species, where possible.
Xeriscaping, which is landscaping using methods
and drought-resistant plant species to minimize
the need for irrigation, is encouraged.
12. Subdivision concepts shall be prepared in
concert with the recommendations of a Qualified
Coastal Professional to ensure that lots created
will not require shore protection measures to
provide useable, safe building sites, and that
these building sites can be located a minimum of
15 metres from the natural boundary of the sea.
13. Shoreline protection measures shall be limited
to that necessary to prevent damage to existing
buildings or structures or established uses on
adjacent upland and only if all other options to
locate and design without the need for shore
protection have been exhausted.
District of Oak Bay - Official Community Plan |
108
14. Where shore protection is required:
- Apply only the 'softest' possible shore
protection measure. The use of seawalls
and rip rap embankments are generally
not acceptable unless no alternative shore
protection design is possible;
- Limit the size and impacts of shoreline
protection measures; and,
- Use inert materials only. Stabilization
materials should not consist of debris or
contaminated material that could result in
pollution of tidal waters.
15. While shoreline hardening should be avoided in
favour of softer solutions to shoreline erosion,
where bulkheads, seawalls, retaining walls or
other revetments are proposed:
-
A report prepared by a Qualified Coastal
Professional shall be submitted certifying
that the construction of the revetment or
bulkhead is required to control erosion
of the owner's land and that 'softshores'
approaches are not viable in the proposed
location;
-
They should be designed as to minimize
the removal of natural vegetation and to
integrate with natural habitat features to
the greatest extent possible;
-
They must not be located where geo-
hydraulic processes are critical to shoreline
conservation and ecosystem function.
Construction in areas on or near feeder
bluffs, eelgrass beds, spits or hooks must be
avoided;
-
They should be located parallel to and
landward of the natural boundary of the
sea and as close to any natural bank as
possible;
-
They should allow the passage of surface or
groundwater without causing ponding or
saturation; and,
-
They should be constructed of stable, inert,
non-erodable materials that preserve
natural shoreline characteristics. Adequate
toe protection including proper footings
and retention mesh should be included.
Beach materials should not be used for fill
behind bulkheads.
16. Existing shore protection measures may be
replaced if the existing works can no longer
adequately serve its purpose provided that:
-
The replacement shore protection measures
are of the same size and footprint as the
existing works, unless required to prevent
shoreline erosion as determined by a
Qualified Coastal Professional.
-
Replacement revetments, walls, or
bulkheads shall not encroach seaward
of the natural boundary of an existing
shore protection measure unless there
are significant safety or environmental
concerns that could only be addressed by
such an encroachment. In such cases, the
replacement shore protection measures
should utilize the 'softest' approach possible,
abut the existing shore protection works,
and be approved by Provincial and Federal
government agencies, where applicable.
-
Where impacts to critical marine habitats
would occur by leaving the existing works,
they may be removed as part of the
replacement measure.
17. All structural shore protection measures shall be
installed within the property line or upland of the
natural boundary of the sea, whichever is further
inland. 'Soft' shoreline protection measures
that provide restoration of previously damaged
ecological functions (e.g. beach nourishment)
may be permitted seaward of the natural
boundary subject to the necessary approvals
from Provincial and Federal government
authorities.
District of Oak Bay - Official Community Plan | 109
18. Docks and wharves shall be constructed and
sited so as to:
-
Avoid impacts on sensitive ecosystems such
as eelgrass beds, fish habitat and natural
processes such as currents and littoral drift;
-
Allow the free flow of water beneath, with
floating docks not resting on the sea bed at
any time;
-
Be connected to the shore via a minimal,
moveable ramp rather than a fixed wharf or
pier; and,
-
Use stable materials that will not degrade
over time or negatively impact water
quality. Unenclosed plastic foam shall not
be used, and creosote-treated pilings are
discouraged.
19. Shoreline protection measures, pilings,
floats, docks, wharves and other structures
should not obstruct public access to and
along the foreshore, except where such access
is determined to be infeasible because of
incompatible uses, safety, security, or harm to
ecological functions.
20. Public accesses should be designed to minimize
their impact on shoreline ecological functions
and fill should not be placed at or below the
natural boundary of the sea for the purposes of
providing a trail or walkway.
21. Ecological restoration and access
improvements should be incorporated into
public projects.
22. Storm water outflows shall have water quality
and water quantity / erosion control features
installed that avoid impacts to slope stability
and the integrity of aquatic habitat.
23. Design outdoor lighting and select outdoor
light fixtures based on dark sky principles, e.g.,
shielded to direct light downward to ground
surfaces only and avoid direct lighting of
building faces and trees.
District of Oak Bay - Official Community Plan |
110
8.2.3 Hazardous Conditions
Development Permit Area
.1
Designation
Areas outlined on Schedule F: Hazardous Conditions
Development Permit Area (DPA) are properties
that contain geotechnically unstable land and are
designated per the Local Government Act Section 488
(1) (a) and (b) for the protection of the environment
and protection of development from hazardous
conditions, respectively. The DPA applies to areas on
Schedule F.
.2
Justification
An area of Oak Bay north of the Royal Victoria Yacht
Club and east of Beach Drive has been identified in
geotechnical engineering studies as being unstable.
The designation of the area as a development permit
area will permit the District to request geotechnical
information prepared by a qualified engineer at the
time of development to assist in the formulation of
development conditions considered appropriate in
light of professional advice.
.3
Objectives
The following are the objectives of the Hazardous
Conditions Development Permit Area:
1. To prevent damage to the environment from
inappropriate development in hazardous areas.
2. To limit development so as to prevent
development from causing or exacerbating
geotechnical hazards.
3. To protect against damage to property and risks
to health and safety.
.4
Application
As provided in Section 488 (1) of the Local
Government Act, the following activities must not
occur within this DPA except to the extent that there
is an exemption for the activity under 8.2.3.5 or the
owner has first obtained a development permit:
1. Land must not be subdivided.
2. Construction of, addition to or alteration of a
building or other structure must not be started.
3. Land must not be altered.
.5
Exemptions
The following do not require a development permit:
1. Repair or maintenance of existing buildings or
other structures, provided there is no alteration
of undisturbed land or vegetation.
2. Emergency repairs to existing structures or
utilities where a potential safety hazard exists.
3. Removal of trees deemed to be hazardous and
a threat to life or safety, as determined by a
qualified arborist.
4. The construction of a small accessory building
(maximum area of 10 m2), such as a gazebo,
garden shed or playhouse, if all the following
apply:
-
No trees are removed; and,
-
The building is not within the area deemed
geotechnically unstable or within the
area recommended as a setback from the
geotechnically unstable area by a qualified
engineer.
District of Oak Bay - Official Community Plan | 111
5. Emergency actions performed by federal,
provincial, regional or District staff required
to prevent, control or reduce an immediate
threat to human life, the natural environment,
archaeological resources, or public or private
property including:
-
Forest fire, flood, and erosion protection
works.
-
Protection, repair or replacement of public
utilities.
-
Clearing of an obstruction from a culvert,
dock, wharf or stream.
-
Removal of hazardous trees.
.6
Guidelines for Hazardous Conditions
Development Permit Area
1. Preserve and protect the integrity of the
geotechnically unstable area and take measures
to minimize risks based on the professional
geotechnical report.
District of Oak Bay - Official Community Plan |
112
8.3. Built Environment
Development Permit
Areas
Introduction
Oak Bay residents care deeply about the form
and character of development in the community.
Throughout the OCP process, there was fairly
universal interest in guiding new development to fit
with the local context and character of Oak Bay.
Infill Residential is a relatively new form of housing
for Oak Bay and it will only be embraced by the
community if it can be accomplished with respect
for neighbourhood character and the natural
environment. Design guidelines will be helpful in
that regard. With the land use changes introduced as
part of this OCP update, the District anticipates an
increase in the number of applications for multi-unit
residential development. Development guidelines
can shape the form and character of new buildings
while also addressing some of the concerns about
sustainability.
Commercial and Mixed-Use projects should also be
shaped to increase the vitality of Oak Bay's village
areas. This will bring more residents to commercial
areas and provide opportunities to enhance the
public realm. The intent of the built environment
guidelines is to set sufficient limits to exclude new
projects that are obviously out of character with Oak
Bay (e.g., large grey concrete walls with no windows
or detailing), and to be flexible enough to allow
creative designs that borrow enough characteristics
of established neighbourhoods to blend with the
diversity that already exists.
The guidelines will enable successful projects that
encompass innovation, environmental practices, and
features that meet the needs of existing and future
residents.
8.3.1 Infill Residential Development
Permit Area
.1
Designation
All of the District is designated as Infill Residential
Development Permit Area (DPA) pursuant to the
following:
1. Local Government Act Section 488 (1) (e) for the
establishment of objectives for the form and
character of intensive residential development.
2. Local Government Act Sections 488 (1) (h), (i)
and (j) for the establishment of objectives to
promote energy conservation, establishment
of objectives to promote water conservation,
and establishment of objectives to promote
the reduction of greenhouse gas emissions,
respectively.
A development permit is required for residential
development that results in 3 or 4 residential units
on a lot and such development is subject to the Infill
Development Permit Area Guidelines.
.2
Justification
Infill Residential development in Oak Bay's
established neighbourhoods will add to the variety
of house types, styles and affordability. This will
provide housing for people of different ages,
income levels and stages of life in these desirable
neighbourhoods.
This DPA provides guidelines to promote
development that reflects the community's
character, respects the natural environment, and
allows existing houses to be retained. Infill is a more
intensive use of the land, which makes use of existing
infrastructure and already disturbed land, reduces
development pressure on natural areas, and helps
to create a more compact and inclusive community.
This can support increased walking, biking and
transit use. Infill housing will allow some residents to
District of Oak Bay - Official Community Plan | 113
remain on their properties and to obtain income, and
bring more people closer to existing and planned
commercial areas, increasing the viability and vitality
of these important places.
.3
Objectives
The objectives of the Infill Residential Development
Permit Area are to promote developments and
redevelopments that accomplish the following:
1. Support a sustainable and compact community.
2. Respect and integrate with the evolving
neighbourhood character and streetscapes.
3. Provide housing diversity to meet the changing
needs of residents throughout their life cycle,
including the needs of persons with physical and
developmental disabilities.
4. Allow owners to retain existing houses and
remain on their property.
5. Provide landscapes that retain and enhance the
urban forest and include rainwater management.
6. Establish a 'good neighbour' design approach
by integrating new houses with respect for
landscaping, overlook, sunlight, views and
parking.
.4
Application
As provided in section 489 of the Local Government
Act, the following activities must not occur within
this DPA except to the extent that there is an
exemption for the activity under 8.3.1.5 or the owner
has first obtained a development permit:
1. Land must not be subdivided.
2. Construction of, addition to or alteration of a
building or other structure must not be started.
3. Land or a building or other structure on that
land, must not be altered.
.5
Exemptions
Development permits are not required in the
Infill Residential Development Permit Area for the
following:
1. Development of land or renovation or alteration
of a building on a parcel of land that will have
less than three residential units after completion
of the proposed project.
2. Interior renovations, an exterior renovation
that does not alter the form or character of the
building, an exterior addition with less than 10
square metres of floor area, and/or an accessory
building with less than 10 square metres of floor
area.
3. All properties within the Uplands land use
designation.
.6
Site Planning and Building Guidelines
1. Locate and design the building massing to:
-
Be complementary with the character and
scale of the surrounding neighbourhood
and adjacent buildings in terms of building
massing, street setbacks, landscaping, and
quality of finishing and details.
-
Consider the potential for larger buildings
and smaller setbacks on arterial and
collector roads and adjacent to commercial
areas
-
Respect the privacy of adjacent properties.
-
Limit shadowing of public outdoor use areas
and adjacent residential properties.
-
Follow passive solar siting principles to
reduce the energy needed for lighting and
heating, e.g., penetration of sunlight and
natural light into interior spaces.
2. Respect the patterns and rhythms of buildings
and open spaces that are characteristic of the
street. When it is not possible to achieve similar
size and shape, the front of the building should
be broken into smaller parts creating an illusion
of a smaller building in scale with its neighbours.
3. Orient patios, porches, balconies and decks
away from neighbouring yards, or if not possible,
insetting or screening them, to improve privacy
for neighbours, recognizing that some overlook
of yards and decks between houses on adjoining
lots is not unusual and may be unavoidable.
District of Oak Bay - Official Community Plan |
114
4. Design driveways, garages and parking pads to
have a minimum intrusion on pedestrian use of
the street, with landscaping of parking areas.
5. Emphasize building entries with features such
as porches, steps, walkways and landscape,
reflecting characteristics from the street and
neighbourhood, and facing the street where
possible. Consider how community connection
with the street may be encouraged through the
use of balconies, patios, porches and front yard
sitting areas.
6. Use building materials, landscaping and paving
that contribute to the quality of the streetscape
and that are in keeping with other houses and
properties on the street.
7. Design the proportion of the façade that has
windows, and the size and detailing of windows,
to relate to those of neighbouring houses.
8. Consider the location of windows carefully in
relation to overlook, recognizing that some
measure of overlook may be welcomed by
neighbours where security is an issue. Plan
window openings on the sidewalls so that they
do not directly align with those of adjacent
houses.
9. Use sustainable building practices and
technologies such as water and energy
conservation, waste reduction, reduction
of greenhouse gas emissions, solar panels,
geothermal energy, bird-friendly glazing and
other emerging systems.
10. Avoid large expanses of uniform materials and
flat monotonous façades facing streets and
public open spaces.
11. Ancillary buildings or accessory dwellings on a
site should be designed and finished in a manner
complementary to, or consistent with the
principal building on a site.
12. Encourage locating utility infrastructure (such
as electrical meters, HVAC units etc.) on the side
or rear facade of buildings where feasible and
screened to minimize visual impact from the
street and neighbouring properties.
13. Exterior garbage and recycling areas must be
screened to minimize visual impact from public
view.
10
11
1
13
4
3
6
Adapted from an image by
Small Housing BC/ Cal Srigley
District of Oak Bay - Official Community Plan | 115
.7
Landscape Guidelines
1. Design the site layout and building locations to:
-
Retain and conserve as much natural
vegetation, rock outcrops, existing
hydrology, and unique site features as
possible, including Garry oaks, other large
trees, and significant vegetation.
-
Respect the existing topography, minimizing
the need for cut and fill, major blasting, or
tall retaining walls.
2. Use low impact development practices such as
the following:
-
Maximize the extent of landscaped areas on
site with absorbent soils and minimize the
amount of impervious surfaces to increase
the natural infiltration (absorption) of
rainwater and to provide a more natural or
landscaped character by:
-
Reducing the amount of impervious
paving and use permeable materials
where possible, e.g., permeable pavers,
permeable asphalt or concrete, decks,
reinforced grass.
-
Considering the use of bioswales, rain
gardens, and other design techniques
that allow greater infiltration of water,
including within and around parking
areas.
-
Promoting the use of rainwater
collection/re-use systems that collect
rainwater for irrigation.
3. Use native, low maintenance (drought resistant,
low water requirement) plants and designs in
landscape plans.
4. Design the landscape to retain, and if possible, to
increase the tree canopy on the site, considering
connectivity of green space with adjacent lots.
5. Design the front yard landscape to be
predominantly vegetated and design fences to
allow views into the property.
6. Consider energy efficiency and conservation in
landscape design, e.g., provide shade in summer,
moderate wind, while allowing sunlight and
daylight into buildings.
7. Design outdoor lighting and select outdoor
light fixtures based on dark sky principles, e.g.,
shielded to direct light downward to ground
surfaces only and avoid direct lighting of building
faces and trees.
.8
Access, Circulation and Parking Area
Guidelines
1. Minimize the intrusion of driveways and parking
by keeping driveways narrow, minimizing paved
parking areas and encouraging shared driveways
to units with individual vehicular access.
2. Locate on-site parking to the rear or side yard
where possible.
3. Locate access and driveways to minimize impacts
on existing trees.
4. Consider using laneways for access where they
exist.
5. Design garages so they do not dominate the front
face of the building closest to the street.
District of Oak Bay - Official Community Plan |
116
8.3.2 Multi-Unit Residential
Development Permit Area
.1
Designation
All areas of the District that are zoned to allow
for the development of Townhouses or Multi-
Unit Apartments are designated as a Multi-Unit
Residential Development Permit Areas (DPA)
pursuant to the following:
1. Local Government Act Section 488 (1) (f) for the
establishment of objectives for the form and
character of Multi Unit Residential development.
2. Local Government Act Sections 488 (1) (h), (i)
and (j) for the establishment of objectives to
promote energy conservation, establishment
of objectives to promote water conservation,
and establishment of objectives to promote
the reduction of greenhouse gas emissions,
respectively.
.2
Justification
Multi-Unit Residential development (townhouses
and apartments) in Oak Bay will provide more
affordable and inclusive housing options in
transition areas between commercial areas and
lower density residential neighbourhoods.
This DPA provides guidelines to promote
development that complements Oak Bay's unique
character, provide an attractive and liveable
environment while increasing density and housing
choice. This will strengthen Oak Bay as a complete
community, increasing support for local shops
and services, and enhancing the viability of active
transportation and public transit.
.3
Objectives
The objectives of the Multi Unit Residential
Development Permit Area are to promote
developments and redevelopments that accomplish
the following:
1. Support a sustainable and compact community.
2. Respect and integrate with neighbourhood
character and streetscapes.
3. Provide housing diversity to meet the changing
needs of residents throughout their life cycle,
including the needs of persons with physical and
developmental disabilities.
4. Provide landscapes that include vegetation and
rainwater management.
5. Support safe pedestrian access and accessibility.
6. Consider the impacts of new construction on
adjacent residents.
.4
Application
As provided in section 489 (1) of the Local
Government Act, the following activities must not
occur within this DPA except to the extent that there
is an exemption for the activity under 8.3.2.5 or the
owner has first obtained a development permit:
1. Land must not be subdivided.
2. Construction of, addition to or alteration of a
building or other structure must not be started.
3. Land or a building or other structure on that
land, must not be altered.
.5
Exemptions
Development permits are not required in the Multi-
Unit Residential Development Permit Area for the
following:
1. Interior renovations.
2. An exterior renovation that does not alter the
form or character of the building.
3. An exterior addition with less than 10 square
metres of floor area.
4. An accessory building with less than 10 square
metres of floor area.
5. Where lower density forms of residential
development (i.e. infill housing) are proposed
in multi-unit residential areas, the Infill
Development Permit Area applies.
District of Oak Bay - Official Community Plan | 117
.6
Site Planning and Building Guidelines
Context, Scale and Massing
1. Design and build new development to contribute
to the cohesion, visual identity and the quality of
streetscapes.
2. Incorporate building elements that are
complementary to other buildings on the
street, such as street walls, façade rhythm, and
horizontal cornice lines.
3. Add visual interest to the streetscape including
laneways through variations in building height,
rooflines and massing. Break up the perceived
mass of large buildings by incorporating visual
breaks in façades.
4. Step back the upper storeys of large buildings
and arrange the massing and siting of buildings
to consider shadowing on lower level units,
adjacent buildings, as well as public and
open spaces such as sidewalks, plazas, and
courtyards. Building articulation may consider
the use of balconies, trellises and architectural
features to reduce the impact of larger buildings.
Articulation may be considered in lieu of
setbacks through the use of balconies, trellises
and architectural features.
5. Avoid blank, windowless walls along and/ or
visible from streets or other public open spaces.
Where blank walls cannot be avoided, features
such as texture, graphics, reveals, and colours
may be incorporated into the façade.
6. Incorporate subtle vertical and horizontal
recesses / articulation on large primary façades
(e.g. cladding details).
7. Contribute to both streetscapes including
laneways if the building is located on a corner
site.
8. Locate and design the building massing to
provide a transition between the form, character
and scale of the surrounding neighbourhood
and the character of commercial areas or arterial
and collector roads that are close to or adjacent
to the property being developed. Consider
future land use when designing the transition in
building heights from taller to shorter buildings
both within and adjacent to the site.
19
1
15
5
2
3
7
Adapted from an image
by Cal Srigley
District of Oak Bay - Official Community Plan |
118
Community and Privacy
9. Respect the privacy of adjacent properties
by reducing overlook between buildings and
neighbouring properties.
10. Limit shadowing of public outdoor use areas and
adjacent residential properties.
11. Retain prominent views of nearby or distant
landscape features from public spaces.
12. Orient building frontages and main entrances
to the dominant street frontage where possible,
with well-defined entries and direct pedestrian
access to the entries from the street.
13. Retain large front setbacks where there is
substantial green space and trees that contribute
to the character of the streetscape. Flexibility
should be considered to accommodate
courtyards and other features between buildings
that would result in building façades up to the
minimum front yard setback.
14. Apply Crime Prevention through Environmental
Design (CPTED) principles to building and site
design, balancing these with objectives related
to landscaping, sustainability and tree retention.
15. Finish other building elevations visible from the
street to a similar standard as the street-fronting
façade.
16. Screen roof-top mechanical and ground-level
equipment from views in a manner that is
consistent with the architectural design of the
building, and so as not to cause visual, noise
or vibration impacts on project residents or
adjacent residential lots.
17. Avoid locating utility infrastructure (such as
electrical meters, HVAC units etc.) on the front
facade of buildings where alternative locations
are feasible and that are screened to minimize
visual impact from the street and neighbouring
properties.
18. Locate garbage and recycling rooms in
underground or covered parking areas where
feasible. Where not feasible, exterior garbage
or recycling areas may be considered with
landscaping and screened to minimize a visual
impact from public view.
19. Encourage community connection with the street
through the use of balconies, patios, and work-
live units (where permitted).
Sustainable Design
20. Use sustainable and green building practices
and technologies such as water and energy
conservation, waste reduction, reduction
of greenhouse gas emissions, solar panels,
geothermal energy and other emerging systems.
21. Apply passive solar siting principles to reduce
the energy needed for lighting and heating, e.g.,
penetration of sunlight and natural light into
interior spaces.
22. Incorporate planted roofs and roof-top gardens
on buildings for use by residents, with care taken
in design to minimize the impact on privacy of
neighbours.
23. Provide charging stations for electric vehicles
and secured storage for bicycles in accordance
with District bylaws.
.7
Landscape Guidelines
1. Design the site layout and building locations to:
-
Retain and conserve as much natural
vegetation, rock outcrops, existing
hydrology, and unique site features as
possible, including Garry oaks, other large
trees, and significant vegetation.
-
Respect the existing topography, minimizing
the need for cut and fill, major blasting, or
tall retaining walls.
2. Use low impact development practices such as
the following:
- Maximize the extent of landscaped areas on
site with absorbent soils and minimize the
amount of impervious surfaces to increase the
natural infiltration (absorption) of rainwater
and to provide a more natural or landscaped
character.
District of Oak Bay - Official Community Plan | 119
- Reduce the amount of impervious paving
and use permeable materials where possible,
e.g., permeable pavers, permeable asphalt or
concrete, decks, reinforced grass.
- Consider the use of bioswales, rain gardens,
and other design techniques that allow
greater infiltration of water, including within
and around parking areas.
- Use rainwater collection/re-use systems that
collect rainwater for irrigation.
3. Use native, low maintenance (drought resistant,
low water requirement) concepts in landscape
plans.
4. Design the landscape to retain, and if possible to
increase, the tree canopy on the site.
5. Make sites accessible to people of all abilities
through the use of universal design principles.
6. Consider energy efficiency and conservation in
landscape design, e.g., provide shade in summer,
moderate wind, while allowing sunlight and
daylight into buildings.
7. Incorporate outdoor amenities such as benches,
courtyards, food gardens, dog relief areas, and
recreation facilities to provide opportunities
for residents to socialize and to contribute to a
sense of community.
8. Screen surface parking areas and service
areas where necessary to reduce impacts on
neighbouring residences and the public realm.
Use planting for screening where possible.
9. Design the front yard landscape to include a
significant proportion of vegetation and design
fences to allow views into the property.
10. Locate and design directional signs and any
similar features to be low profile, ground-
oriented and externally lit with low intensity
fixtures accentuated by landscaping. Do not use
flashing lights, neon signs and similar bright
lights.
11. Locate refuse and recycling container areas
where they are accessible to residents and to
container pick-up trucks, screened with an
appropriate durable enclosure, and provide
landscaping around the perimeter of the
enclosure where possible. Avoid direct exposure
of refuse and recycling areas to public streets.
12. Design and select outdoor light fixtures based on
dark sky principles, e.g., shielded to direct light
downward to ground surfaces only and avoid
direct lighting of building faces and trees.
.8
Access, Circulation and Parking Area
Guidelines
1. Design the internal road and parking system for
efficient circulation of all types of vehicles, with
a layout that discourages speeding, and provide
safe pedestrian routes from parking lots to
building entrances.
2. Include internal landscaping within large areas
of surface parking in order to "break-up" the hard
surface area.
3. Locate parking to the rear or side yard,
underground or under the building where
possible.
4. Locate access points and route driveways to
minimize impacts on existing trees.
5. Garage entries should be located on rear or side
façades of buildings. If this is not possible, they
should be receded behind the front building face
and incorporate architectural detailing to avoid
a streetscape that is auto-centric. Garage doors
visible from the street should include glazing,
design features, and materials/colours to soften
the impact.
6. Consider the use of laneways for access where
they exist.
District of Oak Bay - Official Community Plan |
120
8.3.3 Commercial and Mixed-Use
Development Permit Area
.1
Designation
Areas designated Oak Bay Village, Neighbourhood
Village and Specialized Commercial on Schedule
B: Land Use Plan) as well as any areas zoned for
commercial or mixed-use (commercial/residential)
development are designated Commercial and Mixed-
Use Development Permit Areas (DPAs) pursuant to
the following:
1. Local Government Act Section 488 1(1) (f) for the
establishment of objectives for the form and
character of commercial, industrial or multi-
family residential development.
2. Local Government Act Sections 488 1(1) (h), (i)
and (j) for the establishment of objectives to
promote energy conservation, establishment
of objectives to promote water conservation,
and establishment of objectives to promote
the reduction of greenhouse gas emissions,
respectively.
.2
Justification
Commercial and Mixed-Use development in Oak Bay
will expand the amount of commercial space, mostly
in existing commercial areas, and provide more
residential use above commercial to increase the
vitality of these areas and the viability of businesses.
This DPA provides guidelines to promote
development that reflects the unique character of
Oak Bay's commercial areas, incrementally replacing
aging buildings. This will strengthen Oak Bay as a
complete community, increasing support for local
shops and services, and enhancing the viability of
active transportation and public transit.
.3
Objectives
The objectives of the Commercial and Mixed-
use Development Permit Area are to promote
developments and redevelopments that accomplish
the following:
1. Support a sustainable and compact community.
2. Respect and enliven the character and
streetscape of commercial areas and contribute
to the neighbourhood sense of place.
3. Provide housing diversity to meet the changing
needs of residents.
4. Provide landscapes that include vegetation and
rainwater management
5. Support safe pedestrian access and accessibility.
6. Consider the impacts of new construction on
adjacent residents.
.4
Application
As provided in section 489 of the Local Government
Act, the following activities must not occur within
this DPA except to the extent that there is an
exemption for the activity under 8.3.3.5 or the owner
has first obtained a development permit:
1. Land must not be subdivided.
2. Construction of, addition to or alteration of a
building or other structure must not be started.
3. Land or a building or other structure on that
land, must not be altered.
District of Oak Bay - Official Community Plan | 121
.5
Exemptions
Development permits are not required in the
Commercial and Mixed-Use Development Permit
Area for the following:
1. Interior renovations.
2. An exterior renovation that does not alter the
form or character of the building.
3. An exterior addition with less than 10 square
metres of floor area.
4. An accessory building with less than 10 square
metres of floor area.
.6
Site Planning and Building Guidelines
Context, scale and massing
1. Design and build new development to contribute
to the cohesion, visual identity and the quality
of the streetscape by incorporating building
elements that are complementary, such as street
walls, façade rhythm, and horizontal cornice
lines.
2. Add interest to the streetscape through
variations in building height, rooflines and
massing for larger buildings.
3. Contribute visual interest to both streetscapes if
the building is located on a corner site such as by
wrapping storefronts around the corner.
4. Locate and design the building massing to
provide a transition between the form, character
and scale of the surrounding neighbourhood and
the character of commercial areas or arterial and
collector roads that are close to or adjacent to
the property being developed.
5. For buildings over three storeys, use setbacks
and/or terracing above the third level to reduce
massing impacts on the street, to allow sunlight
penetration, and to retain an appropriate
village-like scale for Oak Bay's commercial
areas. Articulation may be considered in lieu of
setbacks through the use of balconies, trellises
and architectural features.
6. Encourage locating utility infrastructure (such as
electrical meters, HVAC units etc.) on the side or
rear facade of buildings locations where feasible
and that are screened to minimize visual impact
from the street and neighbouring properties.
7. Locate garbage and recycling rooms in
underground or covered parking areas where
feasible.
8. Encourage community connection with the
street through the use of balconies, patios, and
work-live units (where permitted).
Adjacent Properties and Buildings
9. Respect the privacy of adjacent residential
properties by limiting overlook.
10. Limit shadowing of public outdoor use areas and
adjacent residential properties.
11. Consider prominent views of nearby or distant
landscape features from public spaces.
Pedestrian Comfort, Safety and Visual Interest
12. Provide weather protection such as awnings
and canopies in front of stores and at primary
building entries.
13. Provide outdoor spaces that are accessible to
the public and complementary to the uses of
the building, e.g., outdoor eating areas, plazas,
courtyards. Encourage the inclusion of public art
in these outdoor spaces.
14. Apply Crime Prevention through Environmental
Design (CPTED) principles to building and site
design, balancing these with objectives related
to landscaping.
15. Finish building elevations on flanking streets
to the same standard as the street façade and
provide visual interest.
16. Locate commercial uses at street level with a
maximum amount of glazing on the façade at
this level and with well-defined entries oriented
towards the dominant street.
District of Oak Bay - Official Community Plan |
122
17. Address potential conflicts between commercial
and residential uses through design features
such as physical separation of uses, noise and
visual barriers, and mechanical systems to
address air quality.
18. Minimize the visual, noise and traffic impacts
of commercial activity on the surrounding
neighbourhood.
Sustainable Design
19. Use sustainable building practices and
technologies such as water and energy
conservation, waste reduction, reduction of
greenhouse gas emissions, solar panels, bird-
friendly glazing, geothermal energy and other
emerging systems.
20. Follow passive solar siting principles to reduce
the energy needed for lighting and heating, e.g.,
penetration of sunlight and natural light into
interior spaces.
20
16
1
12
5
2
17
8
21. Incorporate planted roofs and roof-top gardens
on buildings for use by residents and patrons.
22. Provide charging stations for electric vehicles
and secured storage for bicycles.
23. Screen roof-top mechanical and ground-level
equipment from views in a manner that is
consistent with the architectural design of the
building, and so as not to cause visual, noise
or vibration impacts on project residents or
adjacent residential lots.
Adapted from an image
by Cal Srigley
District of Oak Bay - Official Community Plan | 123
.7
Landscape Guidelines
1. Design the site layout and building locations to:
-
Retain and conserve as much natural
vegetation, rock outcrops, existing
hydrology, and unique site features as
possible, including Garry oaks, other large
trees, and significant vegetation.
-
Respect the existing topography, minimizing
the need for cut and fill, major blasting, or
tall retaining walls.
2. Use low impact development practices such as
the following:
-
Include generous landscaped areas on
site with absorbent soils and minimize the
amount of impervious surfaces to increase
the natural infiltration (absorption) of
rainwater and to provide a more natural or
landscaped character.
-
Reduce the amount of impervious paving
and use permeable materials where possible,
e.g., permeable pavers, permeable asphalt or
concrete, decks, reinforced grass.
-
Use bioswales, rain gardens, and other
design techniques that allow greater
infiltration of water, including within and
around parking areas.
-
Use rainwater collection/re-use systems that
collect rainwater for irrigation.
-
Use native, low maintenance (drought
resistant, low water requirement) concepts in
landscape plans.
3. Make sites accessible to people of all abilities
through the use of universal design principles.
4. Consider energy efficiency and conservation in
landscape design, e.g., provide shade in summer,
moderate wind, while allowing sunlight and
daylight into buildings.
5. Incorporate outdoor amenities such as benches,
courtyards, food gardens, dog relief areas, and
recreation facilities to provide opportunities
for residents to socialize and to contribute to a
sense of community.
6. Consider landscape screening of surface parking
areas and service areas where necessary to
reduce impacts on neighbouring residences and
the public realm.
7. Locate refuse and recycling container areas
where they are accessible to residents and to
container pick-up trucks, screened with an
appropriate durable enclosure, and provide
landscaping around the perimeter of the
enclosure where possible. Avoid direct exposure
of refuse and recycling areas to public streets.
8. Select light fixtures based on dark sky principles,
e.g., shielded to direct light downward only.
9. Avoid flashing lights, neon signs and similar
bright lights.
.8
Access, Circulation and Parking Area
Guidelines
1. Design any internal road and parking system for
efficient circulation of all types of vehicles, with
a layout that discourages speeding, and provide
safe pedestrian routes from parking lots to
building entrances.
2. Include internal landscaping within large areas
of surface parking in order to "break-up" the hard
surface area.
3. Locate parking to the rear or side yard,
underground or under the building where
possible.
4. Locate access points and route driveways to
minimize impacts on pedestrian streets and
existing trees.
5. Underground garage entries should be located
on rear or side façades of buildings. If this is not
possible, they should be receded behind the
front building face and incorporate architectural
detailing to avoid a streetscape that is auto-
centric. Garage doors visible from the street
should include glazing, design features, and
materials/colours to soften the impact.
6. Consider the use of laneways for access where
they exist.
District of Oak Bay - Official Community Plan |
124
.9
Additional Guidelines for Specialized
Commercial Areas
In addition to applicable Guidelines set out in section
8.3.3.6 and 8.3.3.7, in the case of land shown as
"Specialized Commercial DPA" on Schedule B: Land
Use Framework Map, the following guidelines are
applicable:
1. Design the site's vehicular circulation and
parking to be efficient for all types of vehicles,
with a layout that discourages speeding,
providing safe pedestrian routes from parking
lots to building entrances.
2. Locate buildings/impermeable areas and design
the landscape to retain, and if possible, to
increase, the tree canopy on the site.
3. Design the front yard landscape to include a
significant proportion of vegetation and design
fences to allow views into the property.
4. Locate and design directional signs and any
similar features to be low profile, ground-
oriented and externally lit with low intensity
fixtures accentuated by landscaping.
District of Oak Bay - Official Community Plan | 125
8.3.4 Uplands Siting and Design
Guidelines
The Special Powers Act grants the District the
authority to regulate aspects of the Uplands
Neighbourhood, including guidelines that shape
the siting and architectural design of buildings that
are separate from development permit areas. The
following elements of design will be considered by
the Oak Bay Advisory Design Panel when reviewing
proposed buildings or additions and alterations to
existing buildings in the Uplands.
Goals
The Advisory Design Panel will assess all applications
within the context of the Uplands Regulations
Bylaw and the Oak Bay Zoning Bylaw to achieve the
following goals:
-
To maintain and reinforce a residential park
atmosphere.
-
To ensure the sensitivity of new development to
existing dwellings and landscape features.
-
To promote design excellence through the
approval process for building permits in the
Uplands.
Guidelines
Maintenance of the Residential Park Setting
1. John Charles Olmsted, when designing the
Uplands, intended to achieve a residential park
atmosphere. This concept shall be maintained.
Impact on Views
2. The impact on the view corridors of
neighbouring properties and public areas should
be kept to a minimum.
Setbacks
3. Setbacks shall promote and reinforce the
residential park atmosphere. Front yard setbacks
should be consistent with other houses on the
street, retaining trees and respecting adjacent
private outdoor areas.
Relationship in Character and Massing to the Image of
the Area
4. Buildings should utilize sensitive siting, design
and use of materials that creates a sense of
harmony and neighbourliness in the Uplands.
Impact on Scale and Rhythm of Development
5. Scale and rhythm are established by various
design elements which include: building height,
building form, roof shape, massing, landscaping,
and garages and out-buildings.
Relationship to Adjacent Buildings
6. Site new development as much as possible
within the existing development footprint, with
massing comparable in scale and massing with
other buildings on the street.
Effect of Shadows on Neighbouring Properties
7. Buildings should be sited to limit impacts from
shadowing on neighbouring properties.
Overlook and Privacy Issues
8. Buildings and landscaping should be designed to
reduce opportunities for overlook and preserve
privacy, with significant landscaped areas
between home, neighbour, and street.
District of Oak Bay - Official Community Plan |
126
Accessory Buildings
9. Accessory buildings shall be assessed by
applying the same criteria used for the principal
buildings. Detached buildings should promote
and reinforce the Goals for the Uplands.
General Massing, Proportion, and Overall Articulation
of Building in Relation to Established Housing
10. Massing, proportion, and articulation should be
comparable with other buildings on the street.
Roofscape
11. Design of roofs including pitch, form, gables,
and dormers. Provide variations in roof pitch
and form as well as incorporate secondary roof
elements such as gables and dormers to create
visual interest.
Facade Articulation and Building Entry
12. Exterior materials, finishes, glazing, and
ornamentation should appear as integral parts
of a building and should be sympathetic to the
overall design concept.
Garages and Outbuildings
13. Garages and outbuildings should be of
complementary design to the residence and
utilize similar quality material and finishes.
Fencing and Screening
14. Fencing and walls should be used in a manner
that promotes the open parklike concept of the
Uplands. Enclose outdoor spaces with plants,
screening, and layering of plants and features.
Native Plants and Vegetation
15. Native Garry oak and coastal Douglas fir
ecosystem plants and vegetation should
be maintained and incorporated into new
landscaping.
Preservation of Significant and Healthy Trees and
Plant Material
16. Design the landscape to reflect the character of
the neighbourhood including Garry oaks and
other large trees. Existing mature healthy trees
and vegetation should be retained.
Play and Recreation Areas
17. Areas for play and recreation, including pools,
sport courts, and pitches, should be screened
from view from the street with landscaping.
Hard Landscaping
18. Hard landscaping should utilize high quality
materials and be integrated with soft
landscaping to reflect the character of the
neighbourhood.
Parking and Driveways
19. Provide adequate vehicular circulation and
parking areas on site screened from the street
with landscape, walls and other enclosures,
using narrow landscaped driveways.
Lighting
20. Design outdoor lighting and select outdoor
light fixtures based on dark sky principles, e.g.,
shielded to direct light downward to ground
surfaces only and avoid direct lighting of building
faces and trees.
District of Oak Bay - Official Community Plan | 127
9. Heritage
Conservation
Areas
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128
9.1. Introduction
Part 15 of the Local Government Act provides
municipalities with the authority to establish
Heritage Conservation Areas (HCA). These HCAs are
used by local governments to protect the buildings,
structures, land or features that contribute to the
overall heritage character of a neighbourhood or
distinct areas. An HCA must demonstrate distinct
heritage value and character, and design guidelines
can direct a variety of character defining elements to
reflect heritage values and manage change within a
neighbourhood.
For Oak Bay, heritage conservation areas are one
tool recognized by the Official Community Plan
to conserve the character of clusters of heritage
buildings and their associated landscapes. They aid
in conserving Oak Bay's history and heritage, as well
as its established neighbourhoods and streetscapes.
9.2. Prospect Heritage
Conservation Area
(HCA1)
Category
Sections 614 and 615 of the Local Government Act.
.1
Justification
The Prospect Heritage Conservation Area is a
predominantly residential neighbourhood with
a significant cultural landscape with a sloped
topography, narrow scenic roads, significant
architecturally designed houses, and a location
fronting the Oak Bay beachfront. It is significant
for its aesthetic, historic, social, natural history and
educational values, particularly its representation of
the origins of the Oak Bay community in the late 19th
century, the leafy suburban character of its evolved
cultural landscape, and its mix of architecturally
significant and more modest residences.
The Prospect is significant for its use by First Nations
for millennia. While more widely understood and
acknowledged, the colonial history of this area is
only a brief chapter in the overall history of human
occupation. There has been Indigenous land use
in this area for living, fishing, food and medicine
gathering since time immemorial; and there are
archaeological sites recorded within the boundary of
The Prospect.
The area is important for its integration into a
landscape with features such as steep topography
that rises in elevation from the foreshore to the
higher elevations of York Place, which give some
homes a prominent physical status and considerable
views; bedrock outcrops; and Rattenbury's Beach
and foreshore, all of which have a physical and visual
influence on the form of development and overall
character of the neighbourhood. The landscape
is important for its ecologically significant areas
including rare wildlife and plant species, and its lush
vegetation, both native and ornamental, safeguards
habitat for birds and small mammals.
Of particular importance in the area is the presence
of significant residences built with superior material
and craftsmanship of the time, and designed by
some of BC's most prominent late 19th and early
20th century architects such as Francis Rattenbury,
Samuel Maclure, Karl Spurgin, John Tiarks, Ralph
Berrill, Percy L. James and others, often interpreting
classic residential building styles such as Queen
Anne, Tudor Revival and Classical Revival. The
inclusion of contemporary buildings by well
known late 20th century architects, including a
1996 house designed by Pamela Charlesworth and
Campbell Moore's 1992 Barwin House, makes the
area a showcase for some of BC's most prominent
architects' residential work for over a century.
Significant streetscapes have evolved into a
harmonious integration of narrow roadways,
buildings, trees, garden and natural vegetation,
with remaining evidence of early large estate
development and the adaptation of neighbourhood
design to the site's natural topography.
The eclectic arrangement of buildings and traces in
the landscape, such as openings in walls, overgrown
gates, small pathways and laneways, public
staircases, a decorative well head, and vegetation
and tree patterns, are valued for their physical
manifestations of past patterns of land use. Layers
District of Oak Bay - Official Community Plan | 129
of vegetation are important for their contribution
to the bucolic nature of the neighbourhood and
for softening harder elements such as buildings,
structures and roadways. Trees and plantings
provide screening between the street and private
spaces, and create a peaceful rural atmosphere,
including large sequoia trees associated with the
garden development at Briarbrae, and others
planted around 1912.
Landscape details are fundamentally integral to the
character of the place. They include stone walls,
some with capped pillars, along most streets; gates
and fences; narrow sidewalks; lack of curb and
gutter; and the Lych Gate and stone wall at York
Place and Oak Bay Avenue.
The important rural character of the place and
country lane feel has been retained, even in the
presence of new construction that, to date, manages
to mostly fit into the character of the neighbourhood.
.2
Objectives
The following are the objectives of the Prospect
Heritage Conservation Area:
1. To maintain the distinctive character of the
Prospect neighbourhood as expressed by the
layout of the neighbourhood, the collection of
early homes, as well as the gardens, streetscape,
and landscape features.
2. To ensure the long term protection of heritage in
the neighbourhood while maintaining flexibility
to provide for the upkeep of resident homes and
landscapes.
3. To retain the buildings and features as listed in
the Schedule of Properties to the greatest extent
possible.
4. To ensure new development is respectful of,
and contextual to, the heritage character of the
neighbourhood.
.3
Application
As provided in Section 615 of the Local Government
Act, the following activities must not occur within the
Prospect Heritage Conservation Area (HCA1) unless
the owner has first obtained a heritage alteration
permit:
1. land must not be subdivided;
2. construction of a building or structure, or an
addition to an existing building or structure must
not be started;
3. a building, structure or land must not be altered;
4. a feature that is protected heritage property
must not be altered.
.4
Exemptions
Heritage alteration permits are not required for the
following:
1. interior alterations to a building or structure that
do not affect the external appearance;
2. routine maintenance of buildings and structures,
such as exterior painting of buildings;
3. construction or demolition of accessory
buildings with less than 10 m2 of floor area, and
which are not heritage designated or listed in the
Schedule of Properties;
4. subdivision where a rezoning is not required;
5. tree cutting, landscaping or fence construction
for which no municipal approval is required,
or as may be identified through a heritage
designation or the Schedule of Properties;
6. anything that does not require a building
permit unless it alters the character defining
elements (e.g. materials) of a property that is
heritage designated or listed in the Schedule of
Properties;
7. municipal works;
8. properties identified by Plan VIS1752.
.5
Guidelines
Any work for which a heritage alteration permit is
required must conform with:
1. all applicable bylaws;
2. the latest edition of the Standards and
Guidelines for the Conservation of Historic Places
in Canada as published by Parks Canada;
3. The Prospect Heritage Conservation Area
Guidelines (Schedule K), which form a part of
the Official Community Plan. ScSProperties -
Prospect Heritage Conservation Area
District of Oak Bay - Official Community Plan |
130
Property
Name / Feature
1512 Beach Drive
Sandhurst
1526 Beach Drive
Haynes Cottage
1538 Beach Drive
Bide-A-Wee
1558 Beach Drive
J.W. Morris House
1580 Beach Drive
Home, Stone Walls and Pillars
1590 Beach Drive
Captain and Mrs. L. Adamson House
1701 Beach Drive
lechinihl
1710 Beach Drive
2340 Oak Bay Avenue
Lych Gate (Feature Only)
2364 Oak Bay Avenue
Crenellated Stone Walls and Pillars (Features Only)
2390 Oak Bay Avenue
F. Hamilton and E. Harrison House
1513 Prospect Place
Florence E. Rattenbury Home
1525 Prospect Place
C. Dubois Mason Home
1532 Prospect Place
1535 Prospect Place
Sheilin
1554 Prospect Place
Crenellated Stone Walls, Pillars and Gates (Features Only)
1584 Prospect Place
1621 Prospect Place
Seldon Humphrey's House
1660 Prospect Place
Conrad P.W. Schwengers Home
1670 Prospect Place
1680 Prospect Place
2390 San Carlos Avenue
Patio Court
2396 San Carlos Avenue
Patio Court
2402 San Carlos Avenue
Patio Court
2408 San Carlos Avenue
Patio Court
2414 San Carlos Avenue
Patio Court
1545 York Place
1561 York Place
Crenellated Stone Walls and Capped Pillars (Features Only)
1574 York Place
Crenellated Stone Pillars (Feature Only)
1580 York Place
Arran
1586 York Place
Mr. & Mrs. J. Harman House, Carriage House
1587 / 1595 York Place
Annandale
1590 York Place
Gibson House
1596 York Place
Woodlawn Summer House (Building Only) Crenellated Stone Wall (Feature
Only)
1605 York Place
Briarbrae
Schedule of Properties - Prospect Heritage Conservation Area
District of Oak Bay - Official Community Plan | 131
10. Regional
Context
Statement
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132
10.1. Purpose
As a municipality within the Capital Regional
District (CRD), Oak Bay works collaboratively with
the other 12 partner municipalities to achieve
regional objectives. The CRD's Regional Growth
Strategy (RGS), adopted in 2018, sets out the vision,
objectives, principles and policies for the region. The
Regional Context Statement, as required under Part
13 of the Local Government Act, specifically identifies
the relationship of, and how the Official Community
Plan is consistent with the RGS. It sets out how
the municipality is responsible for supporting the
objectives and policies of the RGS through its own
Community Plan.
The following indicates how this OCP addresses and
is consistent with the objectives of the RGS. These
objectives and policies are discussed in more detail
within the OCP.
10.2. Regional Growth Strategy
Objectives
Objective 1. Managing and Balancing
Growth
Keep Urban Settlement Compact
Considered one of the core municipalities of the CRD,
Oak Bay is located within the Urban Containment
Area and plays a role in accommodating the majority
of new dwelling units within the Containment Area.
It is a compact community with relatively slow
population growth over recent years. As noted in
section 1.6, the OCP plans for Oak Bay to become
a more compact complete community, offering
opportunities for residential, commercial and
economic growth (see also 5.1, 5.2, 5.3, 5.4). For
example, Oak Bay Village and other neighbourhood
villages act as nodes to support residential,
commercial, employment and community services
for local residents.
Opportunities for increased residential density occur
throughout the District in the form of infill housing
while apartments and townhouses will be focused
near to existing villages and commercial areas,
and close to transit corridors ensure the provision
of community amenities to keep services close to
residents. Future growth will increase the number
of people living in complete communities and
contributes to the Core area jobs to population ratio
in the RGS. The Plan encourages increases in the
number of units in new multifamily housing projects
and a slight expansion in multifamily housing
areas as transitions between mixed use areas and
established neighbourhoods (see 5.2, 5.3).The forms
of infill proposed in established neighbourhoods
include a variety of housing options where they
achieve a contextual fit, infrastructure is available,
and they contribute to economic viability; for
example,
-
secondary suites are permitted in all infill
residential areas subject to regulations contained
in the Zoning Bylaw (see 5.3 H15, HR1) and,
-
duplexes, triplexes, laneway houses and
accessory dwelling units were approved in all
zones previously restricted to single-detached
and duplexes as part zoning changes introduced
in 2024 to address the Province's housing
legislation (Bill 44).
Protect the Integrity of Rural Communities
Oak Bay is an urban community with no rural
areas, and the rural policies of the Regional Growth
Strategy do not apply.
District of Oak Bay - Official Community Plan | 133
Objective 2. Environment and
Infrastructure
Protect, Conserve and Manage Ecosystem Health
Oak Bay is characterized by a spectacular setting
and a natural environment that includes ocean
shoreline, creeks and Garry oak ecosystems. Major
parks, or the RGS Capital Green Lands, are identified
as Uplands Park and Anderson Hill Park, which the
OCP designates as Parks & Open Space. Since these
areas are already protected from development, the
Plan seeks to protect existing natural areas through
education and stewardship. General policies (see
4.2 NE1 - NE6) encourage initiatives and activities
that promote public awareness and address
environmental restoration and enhancement.
Given the geographical location of the municipality,
the community does not contribute to the sea-to-sea
green/blue belt, which runs from the Saanich Inlet in
the east to the Juan de Fuca Strait in the west.
The urban forest is also an important environmental
feature in Oak Bay, and the Plan focuses on
protection and enhancement of the urban forest,
increasing vegetation and tree canopy cover (see 4.2
NE7 - NE11, 5.6 PR4, PR5).
Bowker Creek is an important regional watercourse
that has been the subject of extensive
study within the CRD, and a small portion of Hobbs
Creek also flows through Oak Bay. Watercourses
and shorelines are protected through development
permit areas and policies that encourage a Green
Shores approach and return shorelines to their
natural state (see 4.2 NE15 - NE18), 8.2.1, 8.2.2). This,
in addition to a rainwater management plan, serves
to support the RGS target of reducing contaminants
in fresh and marine water bodies.
OCP policies speak to a number of other initiatives,
including:
-
preparing a network plan of trails to support
active transportation and highlight greenways
(see 5.6 PR13, PR16), and which also supports
the RGS target to complete a Regional
Trail Network that is located outside of the
municipality;
-
preparing a rainwater management plan (see 4.2
NE12, 5.2 BE6, 6.2 US9) to achieve low impact
development practices and increase onsite
retention and infiltration;
-
continuing to promote stewardship activities
(see Chapter 4); and,
-
giving consideration to marine areas where
shoreline protection and restoring the shoreline
to a natural state is balanced against use of
the boating community and providing for boat
access (see 4 2 NE15 - NE18, 5.6 PR19, 8.2.2).
Manage Regional Infrastructure Services
Sustainably
The District is responsible for providing utility
services to the community, including water,
sewer and garbage collection. The District is also
continuously looking at ways to reduce energy
use and lower greenhouse gas emissions in the
delivery of those services. For example, with an
aging infrastructure, water pipes are being replaced
or repaired, resulting in water conservation where
water leaks are being reduced.
The OCP land use designations support a
development pattern to direct most apartment
and townhouse residential growth to village and
multifamily areas and along transit corridors (see
Schedules B and C). Villages consist of mixed use,
low to mid rise buildings along arterial or collector
roads, and multi-unit residential areas follow a
similar pattern along arterial or collector roads
(see 5.1 CF1, 5.3 H17, H21, H26, H27, H31). The
pattern of development better utilizes existing
and replacement infrastructure as outlined in RGS
principles.
Any increases to the Oak Bay population will have an
impact on the infrastructure. Policies that support
this growth and accommodate infrastructure include
repairing and replacing water and sewer lines on an
ongoing basis, separating combined sewer systems
where applicable, and expanding the solid waste
collection program (see 6.2 US2, US 3, US7, US10).
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134
Demand for water is addressed through the asset
management program, specifically the water master
plan and water conservation program (see 3.2 US2,
US6).
Specific policies and actions that support
sustainable services and protect the natural
environment include:
-
regular messaging to the community on waste
reduction, and water and energy conservation
(see 6.2 CCE5)
-
development permit area guidelines that
protect the natural environment and specify
sustainable building practices that promote
water and energy conservation, waste reduction,
and reduction of greenhouse gas emissions (see
8.2.1, 8.2.2, 8.2.3, 8.3.1.6, 8.3.2.6, 8.3.3.6).
Objective 3. Housing and Community
Create Safe and Complete Communities
From the perspective of aligning with the RGS all of
Oak Bay can be considered a complete community,
with commercial areas and recreation centres within
walking distance for most residents, and the OCP
seeks to enhance this further. The Plan encourages
mixed use in villages and other commercial areas,
including the Oak Bay Village and Neighbourhood
Villages (see 5.1 CF1, 5.2 MUC6 - MUC10). The
OCP directs higher densities to existing villages,
commercial areas, and multifamily residential areas,
along with infill and townhomes respecting the
characteristics of existing neighbourhoods (see 5.2
BE1, BE2).
The OCP also encourages improvements to parks
and recreation, and community facilities and
services including arts and culture, education,
health, festivals and events (see 5.5 CIS1 - CIS22, 5.6
PR1, PR6 - PR18) by not only expanding and offering
a wider diversity of services, but also ensuring these
services are offered throughout the community. The
Plan supports the expansion of existing commercial
areas and businesses, more housing units and
housing forms including duplexes, triplexes and
townhomes, as part of mixed use redevelopment
projects, and expansion of opportunities for home
based businesses.
The District continues to work with the Capital
Regional District and other levels of government in
efforts to mitigate or adapt to climate change (see
3.2 CCE8, CCE9), and continues to develop an asset
management program to maintain a sustainable
infrastructure for the community (see 6.2).
Improve Housing Affordability
A major goal of the OCP is to increase housing
options to improve affordability and access to
housing (see 5.3 H4, H6-H18). A subsection of the
OCP focuses on affordable and inclusive housing.
The Plan promotes a coordinated approach to
addressing housing issues, through collaboration
with other levels of government and community
groups, by:
-
supporting innovative approaches to creating
affordable and inclusive housing, for example
housing agreements, shared ownership, mixed
market and non market projects, rental housing
and secondary suites (see H6, H7, H12)
-
including affordable and inclusive rental, market,
and non-market housing units as a community
amenity contribution for rezonings and
considering incentives to lower housing costs
(see 5.2 CF7, CF8, CF9, 4.3 H10)
-
considering additional infill dwelling units
on most residential parcels and supporting
conversion of existing heritage and character
homes (see 5.2 BE5, 5.3 H7, 5.7 HR1), and,
-
preparing a housing strategy to specifically
identify opportunities for affordable and special
needs housing (see 5.3 H1, H6).
These actions will lead to an increase in the supply of
more affordable housing, and reducing
both the number of people in core housing need and
those who are experiencing housing insecurity.
District of Oak Bay - Official Community Plan | 135
Objective 4. Transportation
Improve Multi-Modal Connectivity and Mobility
The Regional Growth Strategy includes a target of
42% of all trips within the regional transportation
system made by walking, cycling and transit. Oak
Bay's compact nature and topography make it easily
accessible for walking and biking. According to the
latest Origins and Destinations Survey (CRD, 2022),
the District of Oak Bay has the following mode share:
-
Auto driver: 50%
-
Auto passenger: 15%
-
Transit: 6%
-
Bicycle/Micromobility: 10%
-
Walk: 17%
-
Other: 1%
An OCP goal is to support a diverse range of
transportation options and encourage active modes
of transportation; and the Road Network and Active
Transportation Network reflects the OCP's land use
plan and supports and connects with the Regional
Multi-Modal Network. While supporting major
trip generators such as educational facilities and
work trips in and out of the municipality, the Plan
addresses:
-
"complete streets" in villages through
completion of urban design plans and
implementing new street standards (see 5.4
MUC9, 6.1 T1)
-
universal design of transportation infrastructure,
in concert with adjacent municipalities and
institutions, to ensure people of all mobility
levels have access to sidewalks, bike routes and
transit (see 6.1 T2, T4)
-
encouraging more environmentally friendly
vehicular alternatives to single occupancy
vehicles and private car ownership such as ride
shares and clean energy vehicles (see 6.1 T8, T9,
T10)
-
encouraging the development of Oak Bay's
pedestrian and cycling networks (for example,
construction of Cadboro Bay Road bike
lanes that link with the City of Victoria bike
lanes), upgrading sidewalks, and improving
infrastructure for cycling (see 6.1 T11 - T13)
-
advocating for increased transit service through
BC Transit and exploring options for local modes
of public transportation (see 6.1 T16 - T19)
-
encouraging Transportation Demand
Management by requiring transportation studies
for new developments (see 6.1 T20), and
-
encouraging infrastructure to support multiple
forms of transportation in new developments,
for example bicycle storage, showers and vehicle
charging stations and potentially reducing
parking requirements in new development
projects (see 6.1 T20).
The OCP also proposes improving off-road trails
and paths through the development of a network
plan, to address, for example, the sidewalk network,
greenway corridors, and wayfinding systems (see 5.6
PR13 - PR16, 6.1 T14).
Objective 5. Economic Development
Realize the Region's Economic Potential
The OCP supports the improvement of Oak Bay's
economy through strategic opportunities that
enhance the villages, commercial centres, and
home-based businesses, and encourage new
businesses to establish and flourish. OCP policies
speak to expansion of existing commercial uses and
developing strategies that encourage and support
small and locally owned businesses to establish
and thrive (see 5.4 MUC2, MUC3), considering
new mixed use buildings in existing villages, near
existing corner commercial and in locations lacking
commercial areas (see 5.4 MUC6, MUC7); and
increasing the number of housing units on mixed use
redevelopment projects. Tourism is encouraged and
supported through Oak Bay Tourism by marketing
Oak Bay as a destination (see 5.4 MUC11, MUC12),
and policies support expanding opportunities for
home based businesses by permitting additional
uses (see 5.4 MUC13).
The Regional Growth Strategy establishes a target
of 0.6 for the jobs to population ratio within the
Core Area. Over time, OCP policies will continue to
contribute to the RGS target as commercial activities
within the villages expand, home-based businesses
are supported, and tourism continues to be
promoted (see 5.4 MUC2, MUC6, MUC11 - MUC13).
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136
Objective 6. Food Systems
Foster a Resilient Food and Agriculture System
The District of Oak Bay is home to lands that are
located in the Agricultural Land Reserve. These lands
have historically been used as the Victoria Golf Club
and the Uplands Golf Club, and so provide limited
opportunity to contribute to food security through
increased crop production.
While these lands are not used for agriculture,
OCP policy does recognize the importance of food
security and can support the Regional Growth
Strategy crop production target through smaller
urban agriculture opportunities within the
community (see 5.1 CF6, 5.4 MUC13, 5.6 PR8).
Commercial areas support the retail sale and
consumption of food, and OCP social wellbeing
objectives support the popular local festivals,
providing opportunity for the sale of local fresh and
prepared foods. Waste management policies identify
the possible expansion of solid waste collection,
including green waste pick up.
Objective 7. Climate Action
Significantly Reduce Community-Based
Greenhouse Gas Emissions
The Regional Growth Strategy sets a target of
reducing community greenhouse gas emissions by
61% (from 2007 levels) by 2038. The GHG reductions
target for Oak Bay included in this OCP is net zero
by 2050. The Oak Bay Official Community Plan is
based upon a series of goals supporting community
resilience and sustainability, and which will help
accomplish the RGS target. These goals are then
supported through a series of objectives and policies
that address climate change and greenhouse gas
emissions. Policies and supportive measures in this
OCP focus on reducing emissions in the personal
transportation and buildings sectors. Several policies
and supportive measures are described in the
transportation section.
Policies and actions to be undertaken include:
-
reviewing and assessing greenhouse gas
emissions and climate change mitigation
-
measures on a regular basis (see 3.2 CCE1 - CCE4,
CCE8)
-
continued implementation of BC Energy Step
Code and Zero Carbon Step Code and upgrades
to municipal buildings (see 3.2 CCE12)
-
accelerate low-carbon building retrofits (see 3.2
CCE14)
-
develop policy and standards addressing
embodied carbon in building materials (see 3.2
CCE 12)
-
consider building benchmarking requirements
-
work with the CRD and other agencies to
consider climate change mitigation measures
and adaptation planning, for example,
determining the extent of, and developing an
action plan to address sea level rise (see 3.2
CCE8, CCE9).
The District of Oak Bay has declared a climate
emergency, supported through strategic priorities
and OCP policy. Climate change, greenhouse gas
emissions (see 3.2 CCE1 for the targeted emissions
reduction as mandated by the Local Government
Act), and energy measures are incorporated through
multiple sections of the OCP, from the Natural
Environment and Parks and Open Space, to the
Built Environment, Utilities and Services, and
Development Permit Areas.
Natural areas with ecosystem values continue to
be protected, and actions to increase vegetation
and tree canopy cover are identified. Contributing
to climate change mitigation and adaptation,
protection of the natural environment is an integral
component of the Official Community Plan (see 4.2,
NE1 - NE6).
District of Oak Bay - Official Community Plan | 137
Acronyms and
Definitions
Acronyms
CEEI - Community Energy and Emissions Inventory
CPTED - Crime Prevention through Environmental Design
CRD - Capital Regional District
DPA - Development Permit Area
GHG - greenhouse gas
OCP - Official Community Plan
QEP - Qualified Environmental Professional
RGS - Regional Growth Strategy
RSS - Regional Sustainability Plan Strategy
TDM - Transportation Demand Management
District of Oak Bay - Official Community Plan |
138
Definitions
Adaptable housing - see page 62
Affordable housing - see page 56
Aging-in-place means that an individual or group of
people grows older without having to change their
place of residence and/or community.
Amenities mean items that add to the physical,
aesthetic, or functional appeal of a particular site,
neighbourhood, or the community in general.
Bed and Breakfast means the provision of sleeping
accommodation, toilet facilities and a breakfast meal
to paying guests as a home-based business.
Bioengineering, also called soil bioengineering,
uses live plant materials to provide erosion
control, slope and stream bank stabilization,
landscape restoration, and wildlife habitat. These
techniques can be used alone or in conjunction with
conventional engineering techniques.
Bioswale refers to a vegetated area, usually lower
than the surrounding area, used to retain and filter
rainwater runoff.
Building Code of British Columbia is the legislation
that regulates buildings standards in the Province of
British Columbia.
Carbon neutral refers to achieving a balance
between the amount of greenhouse gas emissions
being produced and the amount of clean-energy
or environmental rehabilitation projects being
undertaken to offset those emissions.
Character refers to the distinct quality and
appearance of a building or place that comes from a
unique mix of defining physical and social attributes.
Climate change refers to any long-term significant
change in the "average weather" that a given region
experiences. Average weather may include average
temperature, precipitation and wind patterns.
It involves changes in the variability or average
state of the atmosphere over durations ranging
from decades to millions of years. These changes
can be caused by dynamic process on Earth (ocean
processes, volcanoes), external forces including
variations in sunlight intensity, and more recently by
human activities.
Crime Prevention through Environmental Design
(CPTED) refers to a series of design interventions
and strategies for reducing opportunities for crime
and empowering legitimate users to feel ownership
over both public and private space.
Daylighting - see page 37
Density refers to the number of residential dwelling
units allowed within one legal parcel based on its
land area. In this Plan, all densities are net of roads,
parks, utilities, and other non-residential, but
complementary uses.
Density bonus refers to the concept of increasing
the floor area or number of units allowed on a
property, usually in exchange for certain amenities
provided to the community by the property owner or
developer.
Density transfer means the concept of transferring
the right to create new parcels through subdivision
of land, or floor area, from one location to another
either within one property or between two
properties, with the transfer registered on titles.
The process involves the affected property owners
negotiating an agreement to transfer the right of
development in principle and then applying for a
rezoning to implement the transfer.
Development refers to new construction projects
that involve residential, commercial, and/or
community institutional uses. Because Oak Bay
is fully developed, the term 'development' also
includes 'redevelopment', i.e., replacement of
existing building(s) with new building(s).
District of Oak Bay - Official Community Plan | 139
Development Permit Area refers to area designated
pursuant to the Local Government Act where
approval of a development permit is required before
a building permit can be issued or a subdivision is
approved with specified exemptions.
Home-based business means any business for
gain or support clearly secondary to the principal
residential use of a property. See page 51.
Duplex refers to two attached, ground-oriented
dwelling units.
Ecosystem means a complete system of living
organisms interacting with the soil, land, water,
and nutrients that make up their environment. An
ecosystem is the home of living things, including
humans. It can be any size, but it always functions as
a whole unit. Ecosystems are commonly described
according to the major type of vegetation, for
example, an old-growth forest or a grassland
ecosystem.
Flood Construction Level is the designated flood
level plus the allowance for freeboard used to
establish the elevation of the underside of a wooden
floor system or top of concrete slab for habitable
buildings.
Greenhouse gas (GHG) refers to gases present in
the atmosphere, which reduce the Earth's loss of
heat into space and therefore contribute to global
temperatures through the greenhouse effect.
Greenhouse gases are essential to maintaining the
temperature of the Earth, however, an excess of
greenhouse gases can raise the temperature of a
planet to uninhabitable levels.
Current levels of CO2 are approximately 100 ppmv
higher than during pre-industrial times. Greenhouse
gases include water vapour, carbon dioxide (CO2),
methane (CH4), nitrous oxide (N2O), sulphur
hexafluoride (SF6) and ozone (O3).
Inclusive housing - see page 56.
Infill development - see page 62.
Local Government Act is legislation enacted in
British Columbia to establish, give powers to and
regulate local governments. Part 14, Division 4 of
the Act provides regulation and guidance of the
development and use of an Official Community Plan.
Low impact development - see page 37.
Mixed-use means development that combines
two or more types of development: residential,
commercial or community facility.
Multimodal transportation means the provision
and accommodation of a variety of transportation
modes including, but not limited to, walking, cycling
and transit.
Multiplex refers to a ground-oriented infill
residential building with four dwelling units.
Natural boundary means the visible high water
mark of any lake, river, stream, ocean, or other body
of water where the presence and action of the water
are so common and usual and so long continued
in all ordinary years as to make upon the soil of the
bed of the lake, river, stream, ocean or other body
of water a character distinct from that of the banks
thereof, in respect to vegetation, as well as in respect
to the nature of the soil itself (Section 1, BC Land
Act).
Naturalizing - see page 39.
Qualified Environmental Professional (QEP) is
defined in the Riparian Areas Protection Regulation.
Riparian area means a transitional zone between
upland and fresh water ecosystems. The vegetation
it supports is in contact with the stream, or is
sufficiently close, to have a major influence on the
total ecological character and functional processes of
the stream.
District of Oak Bay - Official Community Plan |
140
Secondary suite means an additional living space
within a detached home that is separated from, and
smaller than, the primary dwelling. A secondary
suite is intended for the use of a separate household
and contains its own entrance, cooking facilities and
sanitary facilities.
Sense of place - see page 53.
Single detached house means a single dwelling not
attached to any other dwelling or structure (except
its own garage or shed). A single-detached house has
open space on all sides, and has no dwellings either
above it or below it.
Streamside Protection and Enhancement Area
(SPEA) is defined in the Riparian Areas Protection
Regulation as being an area adjacent to a stream
that links aquatic to terrestrial ecosystems and
includes both the existing and potential riparian area
vegetation and the existing and potential adjacent
upland vegetation that exerts an influence on the
stream, the size of which is determined according to
this regulation on the basis of an assessment report
provided by a qualified environmental professional
in respect of a development proposal.
Subdivision means a parcelization of land defined
under the Land Title Act or the Strata Property Act.
Sustainability - see page 12.
Townhouse means one of three or more dwellings
joined side by side (or sometimes, side to back),
but not having any other dwellings either above or
below.
Traffic calming refers to engineering and urban
design measures used to slow down the flow of
traffic and create safer and more comfortable streets
for pedestrians, cyclists and adjacent residents.
Transportation demand management - see page
87.
Tree canopy - see page 36.
Trenchless technology - see page 92.
Triplex refers to a ground-oriented infill residential
building with three dwelling units.
Universal design - see page 62.
Urban agriculture refers to the cultivation,
processing and distribution of food within an urban
area.
Walkability refers to the extent to which an area
is safe, comfortable and accommodating for
pedestrians and cyclists.
Watershed is a defined drainage and runoff area that
contributes water to a particular body of water.
District of Oak Bay - Official Community Plan | 141
Legend
Shorelines DPA
Oak Bay Municipal Boundary
Date: 19/06/2014
0
250
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Key Map
Key Map
District of Oak Bay
District of Oak Bay
Official Community Plan
Official Community Plan
Schedule E:
Shorelines
Development
Permit Area
Schedule B:
Land Use
Framework
Map
Oak Bay Avenue
Foul Bay Road
Cadboro Bay Road
Cadboro Bay Road
Estevan Avenue
Neil Street
Henderson Road
Cedar Hill Cross Road
Beach Drive
Newport Avenue
Central Avenue
St. Patrick Street
Bowker Creek
Hobbs Creek
Landsdowne Road
Uplands Road
Bowker Avenue
McNeill Avenue
Brighton Avenue
Woodburn Avenue
Avondale Road
Plymouth Road
Redwood Avenue
Kendal Avenue
Foul Bay Road
Henders
o
n Road
Mid Downe Road
Eastdowne Avenue
Cadboro Bay Road
Newton Street
Allenby Street
Hault
ai
n
S
t
r
e
e
t
Musgrave Street
Thompson Avenue
Midland Road
Dewdney Avenue
Burdick Avenue
Be
ac
h
D
ri
v
e
Beach Drive
Dalhousie Street
Cavendish Avenue
Carnarvon Street
Cranmore Road
Monterey Avenue
Hampshire Road
Chaucer Street
Byron Street
Elgin Road
Granite Street
Hampshire Road
Victoria Avenue
Windsor Road
Transit Road
Monterey Avenue
Oliver Street
Victoria Avenue
Island Road
Newport Avenue
Falkland Avenue
Beach Drive
Wilmot Place
Crescent Road
Byng Street
Linkleas Avenue
Dorset Avenue
Norfolk Road
Exeter Road
Upper Terrace Road
Landsdowne Road
Legend
Oak Bay Village
Residential
Neighbourhood Village
Resort Hotel
Specialized Commercial
Multi-Unit Residential 1
Uplands
Community Institutional
Parks and Open Space
Townhouse Residential
400m Walking Radius from
Village Centre
Heritage Conservation Area
Cedar Hill Corner
Multi-Unit Residential 2
Special Study Area
January 2026
Cedar Hill Cross Rd
Newport Ave
Crescent Rd
Estevan Ave
Hampshire Rd
St Ann St
Monterey Ave
Thompson Ave
St Patrick St
Lansdowne Rd
Estevan Ave
McNeill
Bay
Oak
Bay
Cadboro Bay
B ow
k
er
Cr eek
Ho
b
bs Cree
k
Deni
s
o
n
R
d
Cot
swol
d
R
d
Island Rd
Kendal Ave
U
p
lands
Rd
Devon
R
d
Hampshire Rd
Falkland Rd
Crescent Rd
Elgin Rd
Henderson Rd
R
e
dwo
o
d
A
ve
Dorset
R
d
Central Ave
Upp
er Ter
Yale St
Monterey Ave
Oliver St
Midd
owne Rd
Transit Rd
Dewdney Ave
Victoria Ave
Burdick Ave
Dalhousie St
Tran
s
it Rd
Oa
k
d
o
w
ne
Rd
Musgrave
S
t
C
urrie Rd
Gordon Head Rd
P
l
y
m
out
h
Rd
A
vondal
e Rd
Tod Rd
Midl
and
Rd
Deal St
Rip
o
n Rd
Dufferin Ave
Epworth St
E
s
plana
de
Mo
u
ntjoy Ave
York
Pl
Byng St
Bee
S
t
Lincoln Rd
Wood
burn Ave
Neil St
Heron St
Dunlevy St
Newton St
St David St
Oliver St
Byron St
F
air St
Sy
l
van
L
n
Wilmot Pl
Linkleas Ave
We
s
se
x
C
ir
Hamiota S
t
Kings Rd
Lorne Ter
Florence St
U
ni
v
er
s
ity
D
r
Ex
eter Rd
No
r
f
o
lk Rd
Oak Bay Ave
McNeill Ave
Be
a
c
h
D
r
Beach Dr
Victoria Ave
Hampshire Rd
Beach Dr
Eastdo
wne R
d
Newport Ave
Lansdowne Rd
Musgrave St
St Patrick St
Haultain
S
t
Bowker Ave
K
i
ng
G
eorg
e
T
e
r
Winds
o
r Rd
Monterey Ave
Granite S
t
Foul Bay Rd
Cadboro Bay Rd
Foul Bay Rd
H
ender
s
on
Rd
Cedar Hill Cross
Rd
Legend
Road Class
Arterial
Collector
Special
Local
Oak Bay Municipal Boundary
Date: 2025-08-20
0
250
500
750
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125
m
I
Key Map
Key Map
Oak Bay Road Network
Oak Bay Road Network
2025
2025
Please Note:
Information on this map is based on District
mapping, which may be updated from time to time.
Issued by: Department of Engineering and Public Works
Drafted: Janusz Krawczynski
Reviewed: Richard Ding
Approved: Mihajlo Samoukovic
November 2025
Schedule C:
Road Network
Oak
Bay
Cadboro B
Bow
k
er
Creek
Ho
b
bs Cree
k
Cot
s
wold Rd
Brighton Ave
Bowker Ave
Mowat St
Eastdowne Rd
Cranmore Rd
Ke
ndal
Ave
U
plands
Rd
Oliver St
Sandowne
R
d
St David St
Elgin Rd
Hampshire
Rd
Dorset Rd
Goldsmith St
Dewdney Ave
Ki
n
r
os
s
Ave
Dalhou
sie St
Mayhew St
Musgrave St
Granite St
Pelly Pl
Lulie St
Plym
o
uth
Rd
Mitchell St
Avondal
e
Rd
Tod Rd
Dryfe St
Som
a
ss
Dr
Rip
on Rd
Dufferin Ave
Epworth St
Espl
anade
Meadow Pl
Clive Dr
Dover Rd
Pacific Ave
Th
o
r
p
e
P
l
York P
l
Harlow Dr
Alle
n
by St
Lincoln Rd
Car
d
ig
a
n
Rd
Neil St
Heron St
Dunlevy St
Newton St
Townley St
Carnarvon St
Bowker
Ave
Byron St
Chaucer St
Milton St
R
e
nf
r
e
w R
d
Fair St
Carrick St
Rutl
a
n
d
R
d
Wilmot Pl
W
e
ss
ex
Cir
Hamiota St
Crestvie
w Rd
Kings Rd
Cavendish Ave
N
orfolk Rd
Prospect Pl
Devon Rd
Henderson Rd
Redw
ood
A
ve
Upp
er Ter
Yale St
Gordon Head
R
d
Lar
k
d
o
wne R
d
Oa
k
do
w
ne
Rd
Cardiff Pl
Midland Rd
W
estd
ow
n
e Rd
Bee
S
t
Wood
burn
Ave
Weal
d
Rd
Florence St
Uni
ver
s
ity
Dr
Exeter
Rd
U
n
iversity W
o
ods
C
a
ttle P
oint
Loo
ko
u
t
Rd
Oak Bay A
ve
Estevan Ave
Monterey Ave
Eastdowne
Rd
Lansdowne R
d
St Patrick St
Thompson Ave
Musgrave St
Haultain St
Bowker Ave
Ne
wport Ave
Lansdowne Rd
St Ann St
Bea
c
h
D
r
Beach Dr
Beac
h
Dr
Beach Dr
Cadboro Bay Rd
Hen
derson
Rd
Foul Bay Rd
Cedar Hill Cross Rd
Foul Bay Rd
Foul Bay Rd
Legend
Watercourses DPA
Oak Bay Municipal Boundary
Date: 19/06/2014
0
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125
m
I
Key Map
Key Map
District of Oak Bay
District of Oak Bay
Official Community Plan
Official Community Plan
Schedule D:
Watercourses
Development
Permit Area
Schedule D:
Watercourse
Development
Permit Area
McNeill
Bay
Oak
Bay
Cadboro Bay
Bow
k
er
Creek
Ho
b
bs Cre e
k
C
ranmore Rd
Uplands
Rd
Nottingham Rd
Hampshire Rd
Falkland Rd
Elgin Rd
Dorset
Rd
Monterey Ave
Oliver St
Transit Rd
Victoria Ave
Musgrave St
Granite St
Lulie St
P
l
y
mou
th
R
d
Tod Rd
Dufferin Ave
Epworth St
E
s
plana
de
York
Pl
Byng St
Lincoln Rd
Neil St
Heron St
Dunlevy St
Allenby St
Newton St
St David St
Oliver St
Fair St
Carrick St
Quimper St
Linkleas Ave
We
s
se
x
C
ir
Hamiota S
t
Kings Rd
R
ipo
n
Rd
Lorne Ter
N
o
r
folk
R
d
D
enis
o
n
Rd
Bee
St
Island Rd
Uppe
r Ter
Yale St
Oa
k
d
o
w
ne
Rd
Gordon He
ad
R
d
Cardiff Pl
Mi
dland Rd
Deal S
t
Woodb
urn Ave
W
e
ald
R
d
Florence St
Un
ive
r
sit
y
D
r
Exeter
R
d
Oak Bay
Ave
McNeill Ave
Victoria Ave
Beach Dr
East
d
owne
Rd
Lansdowne
R
d
Thompson Ave
Musgrave St
Haultain
S
t
Currie Rd
Lansdowne Rd
Beach
Dr
Beach Dr
B
a
r
k
ley Ter
St Patrick St
Monterey Ave
Cadboro Bay Rd
Henderson Rd
Cedar Hill Cross Rd
Foul Bay Rd
Foul Bay Rd
Legend
Shorelines DPA
Oak Bay Municipal Boundary
Date: 19/06/2014
0
250
500
750
1,000
125
m
I
Key Map
Key Map
District of Oak Bay
District of Oak Bay
Official Community Plan
Official Community Plan
Schedule E:
Shorelines
Development
Permit Area
Schedule E:
Shorelines
Development
Permit Area
Oak
Bay
Cadboro B
Bow
k
er
Creek
Ho
b
bs Cree
k
Cot
s
wold Rd
Brighton Ave
Bowker Ave
Mowat St
Eastdowne Rd
Cranmore Rd
Ke
ndal
Ave
U
plands
Rd
Oliver St
Sandowne
R
d
St David St
Elgin Rd
Hampshire
Rd
Dorset Rd
Goldsmith St
Dewdney Ave
Ki
n
r
os
s
Ave
Dalhou
sie St
Mayhew St
Musgrave St
Granite St
Pelly Pl
Lulie St
Plym
o
uth
Rd
Mitchell St
Avondal
e
Rd
Tod Rd
Dryfe St
Som
a
ss
Dr
Rip
on Rd
Dufferin Ave
Epworth St
Espl
anade
Meadow Pl
Clive Dr
Dover Rd
Pacific Ave
Th
o
r
p
e
P
l
York P
l
Harlow Dr
Alle
n
by St
Lincoln Rd
Car
d
ig
a
n
Rd
Neil St
Heron St
Dunlevy St
Newton St
Townley St
Carnarvon St
Bowker
Ave
Byron St
Chaucer St
Milton St
R
e
nf
r
e
w R
d
Fair St
Carrick St
Rutl
a
n
d
R
d
Wilmot Pl
W
e
ss
ex
Cir
Hamiota St
Crestvie
w Rd
Kings Rd
Cavendish Ave
N
orfolk Rd
Prospect Pl
Devon Rd
Henderson Rd
Redw
ood
A
ve
Upp
er Ter
Yale St
Gordon Head
R
d
Lar
k
d
o
wne R
d
Oa
k
do
w
ne
Rd
Cardiff Pl
Midland Rd
W
estd
ow
n
e Rd
Bee
S
t
Wood
burn
Ave
Weal
d
Rd
Florence St
Uni
ver
s
ity
Dr
Exeter
Rd
U
n
iversity W
o
ods
C
a
ttle P
oint
Loo
ko
u
t
Rd
Oak Bay A
ve
Estevan Ave
Monterey Ave
Eastdowne
Rd
Lansdowne R
d
St Patrick St
Thompson Ave
Musgrave St
Haultain St
Bowker Ave
Ne
wport Ave
Lansdowne Rd
St Ann St
Bea
c
h
D
r
Beach Dr
Beac
h
Dr
Beach Dr
Cadboro Bay Rd
Hen
derson
Rd
Foul Bay Rd
Cedar Hill Cross Rd
Foul Bay Rd
Foul Bay Rd
Legend
Hazardous Conditions DPA
Oak Bay Municipal Boundary
Date: 19/06/2014
0
250
500
125
m
I
Key Map
Key Map
District of Oak Bay
District of Oak Bay
Official Community Plan
Official Community Plan
Schedule F:
Hazardous Conditions
Development Permit
Area
Schedule F:
Hazardous
Conditions
Development
Permit Area
McNeill
Bay
Oak
Bay
Cadboro Bay
Bow
k
er
Creek
Ho
b
bs Cre e
k
Deni
s
o
n
R
d
Be
e
S
t
Cots
w
old
Rd
Island Rd
C
ranmore Rd
Kendal Ave
U
p
lands
R
d
Devon
R
d
Hampshire Rd
Falkland Rd
Crescent Rd
Elgin Rd
Hender
son
Rd
R
e
d
w
ood
A
v
e
Dorset
Rd
Central Ave
U
pper T
er
Yale St
Oliver St
Transit Rd
Dewdney Ave
Victoria Ave
Burdick Ave
Dalhousie St
Oa
k
d
o
w
ne
Rd
Musgrave St
Granite St
Gordon Head Rd
A
vondal
e Rd
Tod Rd
Midl
and
Rd
Deal St
Rip
o
n Rd
Dufferin Ave
Epworth St
E
s
plana
de
York
Pl
Lincoln Rd
Wood
burn Ave
Neil St
Heron St
Dunlevy St
Allenby St
Newton St
St David St
Oliver St
Byron St
F
air St
S
y
lva
n
Ln
Wilmot Pl
Linkleas Ave
We
s
se
x
C
ir
Kings Rd
Florence St
Cavendish Ave
U
ni
v
er
s
ity
D
r
Ex
eter Rd
N
o
r
folk
R
d
Oak Bay Ave
McNeill Ave
Beach Dr
Beach Dr
Este
v
an Ave
Victoria Ave
Bea
ch D
r
Eastdo
w
ne R
d
Newport
A
v
e
Lansdowne Rd
B
arkley Ter
St Patri
ck St
Haultain
S
t
Bowker Ave
K
in
g
Geor
g
e
T
er
Currie Rd
Windsor Rd
Monterey Ave
Lansdowne Rd
Cadboro Bay R
d
Fo
u
l
B
a
y
R
d
Hender
s
on
Rd
Cedar Hill Cross Rd
Foul Bay Rd
Legend
Prospect Heritage
Conservation Area
(HCA 1)
Oak Bay Municipal Boundary
Date: 24/02/2020
0
250
500
750
1,000
125
m
I
Key Map
Key Map
District of Oak Bay
District of Oak Bay
Official Community Plan
Official Community Plan
Schedule I:
Heritage
Co
on
Areas
Schedule G:
Heritage
Conservation
Areas
Legend
Shorelines DPA
Oak Bay Municipal Boundary
0
250
500
750
1,000
125
m
I
Key Map
Key Map
District of Oak Bay
District of Oak Bay
Official Community Plan
Official Community Plan
Schedule E:
Shorelines
Development
Permit Area
Schedule H:
Water
Network
McNeill
Bay
Oak
Bay
Cadboro Bay
Bow
k
er
Creek
Ho
b
bs Cree
k
Oak Bay Ave
McNeill Ave
Beach Dr
Beach Dr
Es
t
evan Ave
E
a
st
d
o
w
n
e
Rd
Newport Ave
L
a
nsdowne Rd
B
arkley Ter
Victoria Ave
Beach Dr
St Patrick St
Haultai
n
S
t
Bowker Ave
Currie Rd
Windsor Rd
Monterey Ave
He
nd
erso
n
Rd
Ki
n
g
Ge
o
rg
e
T
er
Foul Bay Rd
Cadboro Bay Rd
Cedar Hill Cross Rd
Foul Bay Rd
H
e
nde
r
s
o
n Rd
Willows Park
Carnarvon
Park
Henderson
Park
Fireman's Park
Uplands Park
Trafalgar
Park
Anderson
Hill Park
Windsor Park
Mary Tod
Island
Trial
Islands
Trial Islands
0.5
1
1.5
0.25
km
ate: 2/26/2025
Legend
Water Network
Oak Bay Municipal Boundary
Legend
Shorelines DPA
Oak Bay Municipal Boundary
0
250
500
750
1,000
125
m
I
Key Map
Key Map
District of Oak Bay
District of Oak Bay
Official Community Plan
Official Community Plan
Schedule E:
Shorelines
Development
Permit Area
Schedule I:
Sanitary Sewer
Network
McNeill
Bay
Oak
Bay
Cadboro Bay
B ow
k
er
Creek
Ho
b
bs Cree
k
Oak Bay Ave
McNeill Ave
Beach Dr
Beach Dr
Es
t
evan Ave
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District of Oak Bay
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Foul Bay Rd
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Willows Park
Carnarvon
Park
Henderson
Park
Fireman's Park
Uplands Park
Trafalgar
Park
Anderson
Hill Park
Windsor Park
Mary Tod
Island
Trial
Islands
Trial Islands
0
0.5
1
1.5
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km
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Legend
Storm Drain Network
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Schedule K
www.heritageworks.ca
The Prospect
Heritage Conservation Area
Guidelines
Mount Baker painted by Samuel Maclure, c. 1890 (BC Archives PDP03773)
District of Oak Bay, BC
www.heritageworks.ca
Acknowledgements
The authors of these Guidelines would like to express their gratitude to Councillor Kevin
Murdoch and other members of the Oak Bay Heritage Conservation Area Working Group,
residents of The Prospect, Oak Bay Archives and The Penny Farthing Public House!
Unless otherwise identified all photographs contained in this document are courtesy of
Ian Robertson or Heritageworks Ltd.
District of Oak Bay - The Prospect Heritage Conservation Area
Page 1 of 63
Contents
Introduction and Acknowledgement
Page 2 - 3
Executive Summary
Pages 4 - 6
Guidelines
How to Use These Guidelines
Pages 7 - 9
Section A - Guidelines for Heritage Resources
Pages 10 - 23
A.1 Form, Scale and Massing
Pages 12-13
A.2 Renovations and Additions
Pages 14-16
A.3 Architectural Details
Pages 17-19
A.4 Building Materials
Pages 20-22
A.5 Demolition
Page 23
Section B - Guidelines for Alterations and Additions
Pages 24 - 25
Section C - Guidelines for New Construction
Pages 26 - 39
C.1 Complementary Design and Siting
Pages 27-29
C.2 Scale, Massing and Proportion
Pages 30-31
C.3 Architectural Character and Detailing
Pages 32-33
C.4 Building Materials for New Construction
Pages 34-35
C.5 Windows and Doors
Pages 36-37
C.6 Lighting for New Construction
Page 38
C.7 Driveways for New Construction
Page 39
Section D - Guidelines for Site Planning
Pages 40 - 58
D.1 Land Use and Neighbourhood Character
Pages 42-43
D.2 Streetscapes
Pages 44-46
D.3 Visual Relationships
Pages 47-48
D.4 Natural Areas and Ecological Features
Pages 49-50
D.5 Vegetation
Pages 51-52
D.6 Landforms
Pages 53-54
D.7 Landscaping Materials
Pages 55-56
D.8 Landscape Design
Pages 57-58
Appendices
Pages 59 -
Appendix 1 - Glossary of Terms
Pages 59-62
Appendix 2 - Statement of Significance
Pages 63
Page 2 of 63
District of Oak Bay - The Prospect Heritage Conservation Area
Introduction
The District of Oak Bay can create a Heritage Conservation Area (HCA) to provide long-term protection
for a distinctive area that is known to contain special heritage value and / or heritage character. This is
accomplished by amending the Official Community Plan (OCP) using a provision under the Local
Government Act [RSBC 2015] (Part 15, Division 5, 614-615). The OCP amendments must describe what is
being protected, and they must explain why they are being protected. And then, either through a further
amendment to the OCP or by introducing a new zoning bylaw, guidelines must be created to explain
how this will be achieved.
HCAs are used by local governments to protect the buildings, other structures, land or features that
contribute to the overall heritage character of a neighbourhood (the City of Victoria, for example,
currently has 13 HCAs). Guidelines are used to manage changes made to the neighbourhood including
alterations, additions and new development. When an owner wishes to make a significant change to
the neighbourhood that might impact its heritage, the owner is required to submit a Heritage Alteration
Permit for consideration by Oak Bay staff. Owners, architects and staff use the HCA Guidelines to
determine whether a proposed change reflects the values of the community and respects the heritage
of the neighbourhood.
Each HCA is unique. They are designed to protect what a community values as special about a place and
worth conserving for the enjoyment of future generations. Community heritage values are typically
recorded in a document called a Statement of Significance (SOS). The SOS that has been created for The
Prospect Heritage Conservation Area (The Prospect) explains why this neighbourhood warrants
recognition as a historic place because of its unique combination of aesthetic, historic, social,
environmental and educational values. The Prospect is one of Oak Bay's oldest neighbourhoods, and it
contains a wonderful collection of historic homes created by some of BC's most prominent architects
including Francis Rattenbury, Samuel Maclure and others.
Watercolour by P. Leonard James
Rattenbury's home Iechinihl
(BC Archives PDP00576)
(Oak Bay Archives OBA 1994-001-081)
While the colonial history of The Prospect is important, it is only a brief chapter in the overall history of
human occupation. There has been Indigenous land use in this area for living, fishing, food and medicine
gathering since time immemorial. There are archaeological sites recorded within the boundary of
Page 3 of 63
District of Oak Bay - The Prospect Heritage Conservation Area
The Prospect, and significant sites nearby, especially in the area of Bowker Creek and Willows Beach.
Evidence suggests these sites are between 3000 - 4000 years old.
Acknowledgement
The District of Oak Bay acknowledges with respect the traditional territory of the Coast and Straits
Salish peoples, and specifically the Lekwungen speaking people, known today as the Songhees and
Esquimalt nations, whose historical relationships with the land continue to this day.
Page 4 of 63
District of Oak Bay - The Prospect Heritage Conservation Area
Executive Summary
The Prospect neighbourhood will be Oak Bay's first Heritage Conservation Area (HCA). It reflects the
hard work and determination of local residents to conserve and protect the heritage value and character
of the neighbourhood they love, plus the ongoing commitment of the District to conserve heritage
resources in Oak Bay. It is hoped that The Prospect will present a framework for future HCAs in other
parts of the District.
The HCA is founded upon three primary documents: the Local Government Act; The Prospect Statement
of Significance (SOS), which was developed with community input in 2017 and then peer reviewed and
amended in early 2018; and the Standards and Guidelines for the Conservation of Historic Places in
Canada, a Parks Canada publication created with input from all provinces and territories as well as the
Federal government. The first of these documents establishes the legal "rules of the road". The SOS
captures the considerable range of heritage buildings and features within the neighbourhood and
explains why they matter to local residents and the broader community of Oak Bay. This approach is
known as values-based assessment. The third document describes a consistent set of conservation
principles and guidelines representing current best-practice in Canadian heritage conservation.
The HCA Guidelines are the result of many hours of effort by professional and volunteer members of the
HCA Working Group. This group was formed to consider how best to protect the heritage character of
The Prospect, now and for future generations. The 12-person Working Group included Council
members, staff members, and representatives from the Oak Bay Heritage Commission, Advisory Design
Panel, Advisory Planning Commission, local residents, heritage consultants and others. The resulting
guidelines reflect both the Working Group's discussions, and comments from the public that were
received during public information sessions, emails and website feedback forms.
The HCA Guidelines draw upon examples of what is working well in other HCAs around the Province,
especially those in residential neighbourhoods.
In compiling these HCA Guidelines, the Working Group has attempted to strike a balance between
ensuring the long-term protection of heritage in The Prospect while maintaining the flexibility that
residents require for the upkeep of their homes and gardens. The Working Group was also conscious of
the community's desire to avoid adding new or potentially cumbersome permitting processes when
many of the most cherished heritage features of the neighbourhood were already protected
(e.g., the Tree Protection Bylaw, the Urban Forest Management Strategy, or formal designation under
the Local Government Act). The resulting Guidelines represent a common sense approach to conserving
The Prospect, and the stewardship of changes made within it.
Like all neighbourhoods in Oak Bay, The Prospect is subject to existing municipal bylaws and policies. In
many cases the objectives of the guidelines are satisfied by existing bylaws and policies (i.e., they are
complementary). In these instances, the guidelines don't attempt to reproduce or restate the language
of existing bylaws and policies but merely supplement them as necessary to achieve the conservation of
heritage within The Prospect. The Tree Protection Bylaw is a good example of this because it already
provides robust protection for trees throughout Oak Bay. While mature trees are essential to the rural
character of The Prospect, it isn't necessary to restate this language in the HCA Guidelines because the
existing bylaw already ensures their protection.
Page 5 of 63
District of Oak Bay - The Prospect Heritage Conservation Area
Another challenge of the HCA Guidelines is to strike an appropriate balance between the more
prescriptive sorts of measures that might ensure protection, and the more general statements of intent
that might allow designers to solve design challenges creatively. The goal is to facilitate innovation,
while encouraging designers to draw upon historic precedents for inspiration, respecting the values and
character of the neighbourhood.
This document also references a Schedule of Protected Heritage Properties (Schedule) located in the
HCA. When a property is included on the Schedule it is legally protected by the HCA. Any property within
The Prospect is eligible for inclusion on the Schedule, even properties with modern buildings or limited
historical value. Such properties are known as context properties, and these can be important to overall
composition of the neighbourhood.
The owners of all properties within the HCA boundary require Heritage Alteration Permits (HAP) when
they wish to make substantial changes to their properties. This process is familiar to the owners of
designated properties (they already use it) but it is new for owners of undesignated properties within
The Prospect. HAPs are used to manage changes to historic values.
Additionally, there are several properties within the HCA that the community has identified as having
heritage significance (i.e., they are important to the overall character of the neighbourhood) but are not
currently protected (and not included on the Schedule). In the long term, it is hoped that these
properties will also be afforded protection through adding them to the Schedule and / or designation.
There are four categories of guidelines that apply when various types of changes are made to the
neighbourhood. The HCA Guidelines apply differently to properties that are listed in the Schedule than
they do to properties not listed in the Schedule. How the guidelines apply to different circumstances is
outlined in the first section, titled 'How to Use These Guidelines'.
Another way that these guidelines may be used is for assessing new development permit applications
for the HCA. Development permit applications in Oak Bay always undergo a review by staff prior to
approval, and this may result in recommendations to Council (and Council approval is always required
for applications that require rezoning). It is anticipated that staff and Council will rely upon the HCA
Guidelines when determining whether a proposed development is appropriate for The Prospect.
Many changes within the HCA do not require any new permits or processes. This is because existing
bylaws will continue to apply in the area and form most of the controls on allowable development. For
example, the process used to make an application for a new subdivision in The Prospect remains
unchanged. In these circumstances, the new HCA Guidelines provide Oak Bay staff and members of the
Advisory Committee with an additional tool for assessing whether a proposed change is appropriate for
The Prospect (i.e., ensuring that it doesn't detract from the heritage character of the neighbourhood).
The Prospect HCA contains a remarkable collection of early homes, gardens and landscape features
dating back to 1898 when architects F.M. Rattenbury and J.G Tiarks purchased 15 acres of land and
began developing them. A special feature of the area is the layout of Prospect Place because it is
the only example of urban design by Rattenbury in Oak Bay. It was planned as a private drive, through a
street of homes by renowned architects, leading to the gates of Rattenbury's own residence
(now Glenlyon Norfolk School).
Page 6 of 63
District of Oak Bay - The Prospect Heritage Conservation Area
Historic landscape details are important to the overall character of The Prospect. Over time,
streetscapes have evolved in harmony with the gardens of the original homes and the natural
topography of the area. Today there is a pleasing integration of narrow roadways, buildings, trees,
gardens and natural vegetation in the neighbourhood. These streets are still used by pedestrians and
cyclists as they have been for well over a century.
Within the neighbourhood it is typical that entries are visible from the street, and most of the older
homes can still be admired from the street. Heritage walking tours are commonly held to share
the history of the area with visitors, and several books have been published about the important
(and diverse) architecture of the neighbourhood.
Architectural styles expressed in the neighbourhood include Queen Anne, Arts and Crafts, California
Spanish style, Tudor Revival and Classical Revival. Most of the homes date from before the Second World
War and are distinguished by their use of high quality materials and thoughtful architectural details.
Wood, stone, stucco, wrought-iron and other traditional construction materials are in abundance. Many
of the oldest homes include beautiful features such as leaded or stained-glass windows, and ornate
woodworking trims and embellishments. Covered porches -- sometimes enclosed to provide sunrooms
or sleeping porches, and often with views towards the water and distant mountains -- add to the rural
character of the neighbourhood and harken to the seaside resort that Rattenbury and Tiarks first
envisioned.
The Prospect neighbourhood is bordered by York Place, San Carlos Avenue, a portion of Beach Drive and
Oak Bay Avenue, and includes both Prospect Place and Broom Road. It also includes the shorelines of
Rattenbury's Beach and Haynes Park.
Map of The Prospect Heritage Conservation Area boundaries.
District of Oak Bay - The Prospect Heritage Conservation Area
Page 7 of 63
How to Use These Guidelines
WHO THESE GUIDELINES ARE FOR
Each new section of the Heritage Conservation Area Guidelines begins with a shaded text block titled
'WHO THESE GUIDELINES ARE FOR' and this describes the circumstances when the subsequent
guidelines will apply. Readers can use this to swiftly navigate the document and find the section that
best applies to them.
INTENT
Each new section of the Heritage Conservation Area Guidelines, and each subsequent guideline begins
with a shaded text block titled 'INTENT'. This describes the high-level objectives of the section or
guideline. This is where the spirit and intention of each guideline is explained.
The Prospect Heritage Conservation Area Guidelines (HCA Guidelines) are a tool for managing change.
The guidelines are based on an examination of the existing conditions of the neighbourhood, the values
and character defining elements outlined in the SOS, and an analysis of how best to retain the overall
heritage character of the neighbourhood while successfully integrating new construction and greater
density as outlined in the OCP.
A guideline is a general rule, principle or piece of advice.
For the purposes of these guidelines, the term property is defined as real-property, meaning land and
buildings. Definitions of other common heritage terms are provided in Appendix 3 - Glossary of Terms.
ABBREVIATIONS USED IN THESE GUIDELINES
HCA Guidelines
The Prospect Heritage Conservation Area Guidelines
HAP
Heritage Alteration Permit
HCA
Heritage Conservation Area
LGA
Local Government Act
OCP
Official Community Plan
Schedule
Schedule of Protected Heritage Properties (see OCP)
SOS
Statement of Significance for The Prospect (see copy in Appendix 1)
The Prospect
The Prospect Heritage Conservation Area
In many cases the intent of the HCA Guidelines is satisfied by existing bylaws and policies. In these
instances, the Guidelines do not attempt to reproduce or restate the language of existing bylaws and
policies, but merely to supplement them as necessary to achieve the conservation of heritage within The
Prospect neighbourhood. Similarly, the HCA Guidelines are intended to supplement the Standards and
Guidelines for the Conservation of Historic Places in Canada and Building Resilience: Practical Guidelines
for the Sustainable Rehabilitation of Buildings in Canada. These existing national standards and
guidelines are built upon international charters and policies that represent best practice in the field of
heritage conservation.
District of Oak Bay - The Prospect Heritage Conservation Area
Page 8 of 63
Exemptions - The existing York Place Strata VIS1752 (YPS) is subject to a restrictive covenant agreement
dated June 7, 1989; between YPS and the Corporation of the District of Oak Bay (Oak Bay). YPS is
included within the HCA boundary and exempted from the HCA Guidelines because the restrictive
covenant is equally (if not more) robust than the Guidelines.
SUMMARY OF THE HCA GUIDELINES SECTIONS
Heritage Resources (Section A)
The heritage resources listed in the Schedule are identified
in the SOS as fundamental to the character of The Prospect.
The Guidelines for Heritage Resources relate to these
protected properties.
Alterations and Additions (Section B)
The Prospect contains a wide range of existing non-
protected properties from different periods. These
properties (i.e. the properties not included in the Schedule)
contribute to the overall character of the neighbourhood as
described in the SOS. Changes to these properties can
positively impact the character of the neighbourhood if
sympathetically undertaken. The Guidelines for Alterations
and Additions provides recommendations to achieve this.
New Construction (Section C)
New construction can have a profound impact upon the
character of The Prospect. The Guidelines for New
Construction are intended to respect the historic precedent
and traditional architectural character of the
neighbourhood, without unnecessarily constraining new
development. Section 4.3 of the Official Community Plan
anticipates and encourages thoughtful new construction
within existing neighbourhoods. It is also acknowledged that
empty properties can sometimes be created as the result of
unexpected circumstances such as accidents (e.g. fire,
natural disaster, etc.). The Guidelines for New Construction
will therefore apply under a variety of circumstances.
Site Planning (Section D)
The public and residential landscapes of The Prospect are
identified as important and character defining elements of
the neighbourhood in the SOS. The guidelines that relate to
landscape (both private and public) apply to the whole
neighbourhood. These include existing, protected
properties, non-protected properties and public property.
These guidelines also apply to all new construction.
District of Oak Bay - The Prospect Heritage Conservation Area
Page 9 of 63
How the HCA Guidelines apply to various types of properties is outlined in the following table:
Some of the many historic homes in The Prospect.
PROCESSES
Heritage
Resources
Alterations and
Additions
New Construction
Site Planning
TYPES OF
PROPERTY
(Section A)
(Section B)
(Section C)
(Section D)
Scheduled and
Protected
see Section A
Existing and
Unprotected
Public
New property
resulting from
subdivision
Empty property
resulting from
demolition of Existing
and Unprotected
New buildings on
Scheduled and
Protected properties
(e.g., Heritage
Revitalization
Agreements, etc.)
District of Oak Bay - The Prospect Heritage Conservation Area
Page 10 of 63
Section A - Guidelines for Heritage Resources
WHO THESE GUIDELINES ARE FOR
The Guidelines for Heritage Resources apply to those properties that are listed on the Schedule
(see OCP). They include houses that have Designated Heritage Status and those that are on the
Community Heritage Register, both defined under section 614 3(b) of LGA ' protected heritage
property'.
INTENT
The Guidelines for Heritage Resources provide direction for preserving and/or altering the historic
fabric of the neighbourhood. These guidelines are intended to supplement the Standards and
Guidelines for the Conservation of Historic Places in Canada with details that are specific to The
Prospect.
Changes to heritage resources should not alter their contribution to the values and character of The
Prospect as described in the SOS and should respect other heritage resources identified in the SOS as
character defining elements.
The Prospect is a significant cultural landscape that is rich in heritage resources. It contains several
highly significant historic properties that were designed by some of BC's most prominent late nineteenth
and early twentieth century architects including Francis Rattenbury, Samuel Maclure, Karl Spurgin, John
Tiarks, Ralph Berrill, Percy L. James and others. There are a range of architectural styles expressed in The
Prospect including Queen Anne, Tudor Revival and Classical Revival, and while the architectural form
and massing of buildings varies, the area is characterized by a purposeful integration of built forms with
the natural environment and topography of the land.
Material construction is typically to a very high standard with traditional materials and superior
craftsmanship that are indicative of the period of construction.
In addition to the historic buildings that characterize The Prospect, there are contemporary buildings by
well known late 20th century architects including a 1996 house designed by Pamela Charlesworth and
Campbell Moore's 1992 Barwin House. Together these make the area a showcase for some of BC's most
prominent architects' residential work for over two centuries.
Owners of heritage buildings are encouraged to take their time before undertaking any alterations,
collecting as much information about the building as possible before applying for a Heritage Alteration
Permit (HAP). Archival records and photos and a thorough examination of the building itself will yield
clues as to its original appearance, materials, and even character defining features that have been lost
and may be worth restoring, as changes are being planned.
District of Oak Bay - The Prospect Heritage Conservation Area
Page 11 of 63
The District of Oak Bay recognizes that heritage conservation contributes to creating a sustainable built
environment and resilient communities. Retrofitting existing buildings to reduce their energy and water
consumption, carbon footprint and greenhouse gas emissions is important for combating climate
change. These Guidelines are intended to accommodate and complement sustainable rehabilitation of
buildings within The Prospect as outlined in Building Resilience: Practical Guidelines for the Sustainable
Rehabilitation of Buildings in Canada.
GUIDELINES FOR HERITAGE RESOURCES
RECOMMENDED
NOT RECOMMENDED
Retention and conservation of all
heritage resources within The Prospect.
Demolition or removal of any heritage
resources including historic buildings,
structures, and/or significant features.
The Standards and Guidelines for Historic
Places in Canada is in all cases used as the
basis for review of alterations to historic
resources.
Changes to heritage resources, including
historic buildings, structures and features in
ways that significantly alter their historic style
or their contribution to the values and
character expressed in the SOS.
The conservation and stewardship of
heritage resources, including historic
buildings, structures, and significant
features in a manner that is appropriate to
their period and style, and recognizes their
contribution to the values and character
expressed in the SOS.
Changes to heritage resources, including
historic buildings, structures and features in
ways that significantly alter their original
proportion and massing (form).
The thoughtful use of local, natural building
materials that are consistent with original
patterns of construction.
Building materials that are inconsistent
with the original patterns of construction in
The Prospect.
Retention of key elements of historical
styles.
District of Oak Bay - The Prospect Heritage Conservation Area
Page 12 of 63
A1 - Form, Scale and Massing
INTENT
Alterations or changes proposed for protected heritage property should be consistent with the original
form, scale and massing of each individual property. Special care should be taken to be consistent with
the original design, preserving details and architectural arrangements that contribute to overall
composition and form.
In every instance, the heritage resource should remain the primary focus of the property. Valued and
character defining features should not be eclipsed by the form, scale or massing of alterations.
The form, scale and massing of protected heritage properties in The Prospect varies widely and
encompasses a range of architectural styles from large neoclassical structures such as The Gibson House,
to the small and compact cottages designed by K. B. Spurgin along San Carlos Avenue.
For the purposes of these Guidelines the following definitions apply:
Form refers to architectural design and physical characteristics of a building;
Scale relates to the volume of a structure, including height, in its relationship to the landscape
and adjacent structures;
Massing refers to where volume is placed in the context of its site.
GUIDELINES FOR FORM, SCALE AND MASSING
RECOMMENDED
NOT RECOMMENDED
Any proposed changes or alterations that
include the preservation, rehabilitation or
restoration of the original form, scale and
massing of the building.
Changes that dominate or are incompatible
with the original building's form, scale and
massing.
Changes are sympathetic to the character
defining elements of the property.
New architectural features or accessory
structures that significantly differ from
original architectural form.
Changes are subordinate to and
distinguishable from the original building
form, scale and massing.
District of Oak Bay - The Prospect Heritage Conservation Area
Page 13 of 63
Examples of appropriate form, scale and massing.
District of Oak Bay - The Prospect Heritage Conservation Area
Page 14 of 63
A2 - Renovations and Additions to Protected Buildings
INTENT
Renovations and additions should be physically and visually compatible with original
construction and subordinate to original form, scale and massing.
Where upgrades to heritage properties are required to ensure life-safety (e.g. seismic
upgrades, fire prevention, etc.), additions and renovations should be made in a spirit of
compromise that will ensure life-safety while respecting the building's original form, scale,
design and materials.
The design of renovations and additions should generally be subordinate to original construction
and care should be taken to not overwhelm the form or massing of the original historic form.
Additions should be distinguishable from original construction through choice of materials and
architectural form, but should be architecturally sympathetic, enhancing and highlighting the
significance and original design intent of the heritage resource as expressed in the SOS,
Designation Bylaw, Register entry or Schedule as protected heritage property.
New construction should be distinguishable from the existing building so that it can reflect a
more contemporary inspiration, with additions to protected buildings in The Prospect concordant
with the original architecture.
GUIDELINES FOR RENOVATIONS & ADDITIONS TO PROTECTED BUILDINGS
RECOMMENDED
NOT RECOMMENDED
Alterations and additions should minimally
impact historic landscapes.
Demolition or relocation of scheduled historic
buildings (in part or in whole), ancillary
structures and protected features.
Additions should be made to be reversible
(i.e., may be removed in the future).
Changes that are incompatible with the
original building's form, scale and massing.
Retention of the maximum amount of original
building fabric shall be the goal during
renovations and additions. Repair rather than
remove or replace sound original fabric.
Where appropriate, consider the removal of
later additions and alterations that detract
from the character defining features of a
property.
Removal or replacement of good/sound original
building fabric (e.g., replacement of stone or
brick foundations with concrete).
District of Oak Bay - The Prospect Heritage Conservation Area
Page 15 of 63
GUIDELINES FOR RENOVATIONS & ADDITIONS TO PROTECTED BUILDINGS
RECOMMENDED
NOT RECOMMENDED
New garages or accessory buildings
constructed at the rear of properties where
they will not detract from the historic
presentation of the building to the street.
Where a historic building faces two streets,
the historic presentation of the building to
both streets should be maintained.
Exterior fire escapes.
Street views of historic garages or accessory
buildings should be preserved.
New exterior entries.
Multi-unit conversions that have a minimal
effect on the external appearance of
buildings.
Alterations of exterior windows and doors by
'blocking up' to facilitate changes to interior
partition walls.
Preservation of original pedestrian
access/egress.
Life-safety upgrades (e.g., seismic upgrading)
that respect the building's original form,
scale, massing and materials.
District of Oak Bay - The Prospect Heritage Conservation Area
Page 16 of 63
Example of a physically and visually compatible alteration to a protected building in The Prospect. The
new dormer uses the same roof pitch as the original roof, and the architectural detailing is consistent
with the original period of construction. The materials are also consistent with the original home.
District of Oak Bay - The Prospect Heritage Conservation Area
Page 17 of 63
A3 - Architectural Details
INTENT
Original architectural details belonging to a heritage resource should be maintained and
conserved where existing, particularly if contributing to the value/character described in the
SOS. Porches and entryways are uniquely important to significance, as are windows and doors.
Details that form part of architectural assemblies (such as porches) should be considered in
that context.
Where repairs and changes are proposed, the design of architectural details will be informed by,
and consistent with, existing details elsewhere on the building and made from similar or in-kind
materials.
Where physical evidence for original detailing is not present, research into original plans, historic
photographs and other supporting evidence may support reinstatement or new design (Oak Bay
Archives or UVic Special Collections).
GUIDELINES FOR ARCHITECTURAL DETAILS
RECOMMENDED
NOT RECOMMENDED
Repairs to architectural details (windows
doors, trim, moldings, etc.) is recommended
over replacement, even when partially
damaged or decayed.
Removal or replacement of good/sound
original building fabric (e.g., replacement of
wooden windows with metal or vinyl
windows).
Repairs and/or reinstatement of architectural
detailing that is consistent with the date of
construction of the heritage resource and is
based on documentary or physical evidence.
Introduction of new pseudo-historic features or
embellishments where there is no evidence of
their previous use on the building.
The thermal performance of heritage
buildings should be upgraded in such a way
as to preserve existing original features
(e.g., introduction of wood-framed storm
sashes).
Removal and replacement of inappropriate
windows, doors and architectural features
with replicas of the originals.
Alterations or changes to window or door
opening sizes. Partially or completely blocking
up historic windows or doors.
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GUIDELINES FOR ARCHITECTURAL DETAILS
RECOMMENDED
NOT RECOMMENDED
Use of original profiles, materials and building
assemblies in repairs to cladding and building
envelope.
Addition or replacement of trims and other
details that do not match the dimensions and
profiles of originals.
Use of original roofing materials and finishes
in repairs and maintenance to roofs.
The profiles of eaves troughs, gutters,
scuppers, downspouts and other rainwater
goods that match the profiles of originals.
Use of original paint and stain colours.
Retention and repair of original chimneys.
Where window replacement is necessary, use
new windows that match original dimensions,
materials, style and manufacture.
Metal or vinyl windows (except as necessary
to match historic steel sashes).
New window and door trims that match the
dimensions and profiles of originals.
Doors or windows with mirrored or reflective
glass lights.
Repairs to windows, doors and architectural
features by skilled craftspeople with previous
heritage experience.
Retention and reinstatement of original
hardware in window and door repair or
replacement.
Replacement of historic window and door
hardware.
Retention of interior architectural features
such as walls, ceilings, fireplaces, stairs.
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Examples of original architectural details that are important to maintain and conserve.
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A4 - Building Materials
INTENT
Materials used in the original construction of heritage resources should be used for all repairs,
replacement, alterations and additions. Imitative or modern materials that attempt to replicate
original materials should be avoided.
The materials palette that was used in the construction of the great majority of the historic houses in
The Prospect is relatively small. It includes wood, brick, stone, wrought and cast iron, tin, lime and
Portland cement. These materials, used in combination and in patterns of construction that are
distinctive to the region and the period of construction, play an important part in defining the values
and character of the historic built environment within The Prospect and further afield.
It is acknowledged that there are practical constraints and considerations that apply to the specifications
of some building materials (e.g. hazardous materials such as lead-based paints or asbestos tiles/shingles).
Sustainability and durability/longevity should also be considered.
Building materials that are based on plastics or aluminum (e.g. vinyl siding, vinyl windows and doors,
aluminum windows, etc.) are particular to modern construction. These materials are inconsistent and
incompatible with construction dating before the 1950s.
GUIDELINES FOR BUILDING MATERIALS
RECOMMENDED
NOT RECOMMENDED
Continue the legacy of high quality,
traditional materials.
Damage, removal or replacement of historic
building materials unless damaged/decayed
beyond repair.
Building materials that are compatible with
the date the building was constructed and
based on documentary or physical evidence.
Repair and preservation of original materials
where possible. Replace only when the
materials are damaged/decayed beyond
repair.
New materials used for repairs or
replacements should match the dimensions
and profiles of historic materials.
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GUIDELINES FOR BUILDING MATERIALS
RECOMMENDED
NOT RECOMMENDED
Where previous renovations have
introduced modern materials, these should
be replaced with traditional materials as
opportunity arises (e.g., during future
maintenance and repair works).
Imitative modern materials such as cultured
stone, fiberglass, textured plastic lumber or
textured fiber-cement lumber.
The use of traditional building materials
that are local to the area and consistent
with traditional building technology.
Polished metal or reflective exterior surfaces.
Wood species, grades and specifications
should match original. Naturally decay-
resistant wood species are preferred to
pressure treated lumber.
Exposed pressure-treated lumber.
Stone that is selected to match the type, sizes
and colours of original construction.
Split-faced masonry units.
The composition of mortars matches the
original construction.
Standard mortar mixes that alter the
appearance and composition of historic
masonry.
Colour selections based on documentary or
physical evidence of historic colors when
available.
Combed or textured lumber or wood
panels.
Traditional exterior cladding materials such
as wood siding should be repaired instead
of replaced with modern materials such as
fiber cement board.
Textured fiber-cement siding.
Aluminum, vinyl or plastic siding or trims.
Full-dimension, rough-sawn lumber and
timbers should be replaced with rough-sawn
lumber and timbers as opportunity arises
during construction or repair.
Non traditional roofing materials such as
fiberglass and metal.
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Examples of traditional materials used in The Prospect.
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A5 - Demolition
INTENT
Demolition for registered, designated or scheduled protected heritage properties within the HCA
will only be considered in special circumstances, and will always require a Heritage Alteration
Permit. Adaptive reuse, rehabilitation or repair shall always be preferred to demolition of
heritage resources.
Where demolition is considered, guidelines with respect to landscapes apply. Demolition to facilitate
new construction will similarly be subject to the Guidelines for New Construction.
Demolition within The Prospect will not be permitted unless a building permit is approved by the
District. The removal of heritage from The Prospect will be regarded as demolition.
The removal of heritage from The Prospect will be regarded as demolition. Photo: Nancy DeVeax, Globe
and Mail, 25 March 2016.
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Section B - Guidelines for Alterations and Additions to Non-Protected
Buildings
WHO THESE GUIDELINES ARE FOR
The Guidelines for Alterations and Additions to Non-Protected Buildings apply to those properties
that are not listed on the Schedule. These guidelines are intended to promote the character of the
neighbourhood through renovations and additions that are sympathetic and complementary to the
community values as described in the SOS.
INTENT
Renovations and additions to non-protected buildings within the HCA should be physically and visually
compatible with the architectural style and original construction of the property in question. It is
recommended that the wider context of the neighbourhood be considered when determining the form,
scale and massing of alterations and additions.
Materials that were used in the original construction of The Prospect neighbourhood include: wood,
brick, stone, wrought and cast iron, tin, lime, Portland cement and other traditional building materials.
These materials, used in combination and in patterns of construction that are distinctive to the region,
play an important part in defining the character of The Prospect neighbourhood.
As existing, non-protected properties are changed during the process of additions and alterations,
opportunities arise to use more rather than less of these traditional materials. The guidelines for
alterations and additions encourage this. Similarly, building materials that are based on plastics
(e.g., vinyl windows, doors and siding) are inconsistent with the most highly valued characteristics of the
neighbourhood.
Wherever possible, it is recommended that renovations and additions to non-protected buildings should
be complementary and subordinate to the original construction.
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GUIDELINES FOR ALTERATIONS AND ADDITIONS TO NON-PROTECTED BUILDINGS
RECOMMENDED
NOT RECOMMENDED
Alterations or additions that respect
the building's original architectural
form and design intention.
Alterations or additions that conflict with
the architectural style of the original
building.
The form, scale and massing of alterations or
additions should be appropriate to the size
and scale of the original property.
New garages or accessory buildings that are
constructed at the rear of properties where
they will not detract from the presentation
of the building to the street.
Replacement of traditional materials with
modern materials.
The use of high quality, traditional materials
that match those used in the historic
landscape of The Prospect and that develop
a patina with age.
Synthetic or manufactured materials that are
imitative of historic natural materials.
The use of muted or diffused, naturally
coloured lighting.
Bright or harsh unnatural lighting.
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Section C - Guidelines for New Construction
WHO THESE GUIDELINES ARE FOR
The Guidelines for New Construction apply to all new construction on existing lots in The Prospect
including those where demolition is proposed or has occurred.
INTENT
The guidelines for new construction are intended to encourage new development that respects,
reflects, complements and is compatible with the historic character and development of The Prospect.
The character defining elements of the neighbourhood as expressed in the SOS should serve as the
guiding principles for new construction designs.
Limiting the potential negative impacts of new development on adjacent, protected properties is
critical to the successful integration of new buildings within The Prospect HCA.
As with the Guidelines for Alterations and Additions to Non-Protected Buildings, these guidelines are
intended to promote the character of the neighbourhood through complementary and high quality
new design that contributes to the community values as described in the SOS.
Despite the wealth of surviving historic buildings in The Prospect neighbourhood, there is no dominant
architectural style. These homes range in date of construction and are typically built to a high standard
of using traditional materials. Many of the houses in The Prospect neighbourhood were regarded as
highly significant and important examples of contemporary design in their day.
New design and development within The Prospect should carry on this tradition while being compatible
with and respectful of the neighbourhood context and character as reflected in the SOS. In recognition
of current housing standards, the cost of construction materials and Oak Bay's commitment to green
and sustainable buildings, a comprehensive design approach is needed to deliver high quality new
construction that complements The Prospect neighbourhood rather than detracting from it. The
Guidelines for Building Permits are intended to support this process.
For the purposes of these Guidelines the following definitions apply:
Complementary means adding to or combining in such a way as to enhance or emphasize the
qualities of both original and new;
Contemporary means living or occurring at the same time (i.e. belonging to or occurring in the
present).
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C1 - Complementary Design and Siting
INTENT
The design of new buildings in The Prospect should complement the architectural styles of existing
buildings on adjacent properties, with respect to heritage character, shape and scale. Similarly, when
siting/locating new buildings on property, use precedents set by existing buildings on adjacent
properties.
Limiting the potential negative impacts of new development on adjacent protected properties is
critical to the successful integration of new buildings within The Prospect HCA.
Prospective designs should look to the architectural context of the neighbourhood for inspiration. To do
this successfully, designers require a working knowledge of the architectural styles and materials that
are prevalent in the neighbourhood. Complementary new design will be sympathetic to the traditional
architectural character of the area.
Because there is no dominant architectural style within the neighbourhood, and architectural styles vary
from property to property, the guidelines encourage the principle of complementary design whereby
new construction uses existing construction as a guide for the design of the shape of new buildings -
including their size and footprint on the lot. New design should not set new precedent but should follow
existing.
The architectural styles expressed in the neighbourhood include Queen Anne, Tudor Revival Classical
Revival, California Spanish style, and Arts and Crafts or Craftsman style. These existing architectural
styles share a common palette of materials, particularly wood, stucco and stone; and the use of this
materials pallet in new construction can contemporary design is encouraged.
Special attention should be paid to the volume, height, massing and relative size. Designs for new
construction should include consideration of important geometrical precedents such roof slope,
window/door sizes, and ratio of wall to window and door openings.
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GUIDELINES FOR COMPLEMENTARY DESIGN AND SITING
RECOMMENDED
NOT RECOMMENDED
New construction compliments the
interpretation of existing, protected
properties.
New construction negatively impacts the
interpretation of existing, protected
properties.
Siting of new construction using setbacks that
are consistent with historic and neighbouring
properties.
Siting of new construction using setbacks that
are not consistent with neighbouring
properties and the streetscape.
Siting of houses with adequate setbacks
to maintain layered vegetation.
Siting of buildings that adversely impact on
the natural rural character of The Prospect.
Design of new construction that reflects the size
and proportions of neighbouring buildings.
New house designs that are out of proportion
with neighbouring properties.
New design using architectural forms that are
common to The Prospect area, e.g., simple
pitched roofs, low wall elevations, pitch roof
dormers, traditional ratio of window openings
to wall areas (with the wall surface
predominating).
Architectural forms that contrast with
existing forms, e.g., flat roof construction,
large glazed wall construction visible to the
street.
New construction that is consistent in height
with neighbouring buildings.
Designs incorporating multiple historical
architectural styles.
Garages and accessory buildings sited to
rear of the property and behind or to the
side of main house.
Garages and accessory buildings built to
the front of property.
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Historic examples of siting with large, front setbacks.
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C2 - Form, Scale and Massing
INTENT
New design will use existing historic properties as a precedent for making design decisions concerning
form, scale and massing. Generally, existing patterns of building heights should be considered in any
new building design.
For the purposes of these Guidelines the following definitions apply:
Form refers to architectural design and physical characteristics of a building;
Scale relates to the volume of a structure, including height, in its relationship to the landscape
and adjacent structures;
Massing refers to where volume is placed in the context of its site.
GUIDELINES FOR FORM, SCALE AND MASSING
RECOMMENDED
NOT RECOMMENDED
New design that reflects the size and massing
of existing buildings on the adjacent
streetscape.
Size and proportion that are noticeably larger
(or smaller) than neighbouring buildings.
The height of new construction reflects that
of existing adjacent properties.
New construction that is significantly taller
than existing neighbouring buildings.
New design using massing that reflects the
existing architectural character of the
neighbouring streetscape.
New design that uses architectural forms that
are common to the neighbourhood and that
are reflected in its character.
Architectural forms that are not common to
the neighbourhood or identified in the SOS.
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Example of inappropriate form, scale and massing (also demonstrating incompatible building materials,
incompatible landscaping materials, an expansive and impermeable driveway and inappropriate door
and window design).
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C3 - Architectural Character and Detailing
INTENT
New design should be complementary to and reflective of the traditional architectural character of the
neighbourhood. The elements of architectural design and texture should follow the general pattern set
by protected properties.
Designs that reflect the character of the neighbourhood as described in the SOS, through use of
contemporary idiom that associates itself with historic methods, forms and detailing, or through
traditional architectural style, are encouraged.
The architectural styles expressed in the neighbourhood include Queen Anne, Tudor Revival, Classical
Revival, California Spanish style, and Arts and Crafts or Craftsman style. These existing architectural
styles share a common palette of materials, particularly wood, stucco and stone and the use of this
materials pallet in new construction is encouraged.
Designs that mix architectural styles, historic periods, architectural details or architectural materials
(pastiche) in ways that have no historical precedent in the neighbourhood should be avoided. Similarly,
the imitation of historic architectural styles using imitative and non-traditional materials should be
avoided.
GUIDELINES FOR ARCHITECTURAL CHARACTER AND DETAILING
RECOMMENDED
NOT RECOMMENDED
Architectural character and detailing that is
complementary to the character defining
elements of the neighbourhood as
expressed in the SOS.
Design that is consistent in architectural
detailing and form, avoiding a mix of
historical periods and architectural styles.
A combination of design styles from multiple
periods.
Simple rooflines based on historic
precedent.
Rooflines with varying and multiple angles.
Profiles of eaves troughs, gutters, scuppers,
downspouts and other rainwater goods should
be consistent with, or complementary to,
historic local patterns.
The use of imitative materials and
architectural detailing.
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Examples of architectural detailing and forms that are complementary to the historic precedent. The
example on the left uses contemporary design and traditional materials to achieve this, while the
example on the right uses traditional design and traditional materials. Both examples are appropriate
because the detailing is consistent with historic architectural styles in the neighbourhood.
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C4 - Building Materials for New Construction
INTENT
Materials used in new construction should be consistent with and complementary to the range of
high quality materials found in the existing protected properties in The Prospect.
The range of materials used in the construction of the great majority of historic houses in The
Prospect neighbourhood is relatively small. It includes wood, brick, stone, wrought and cast iron,
tin, lime and Portland cement. These materials, used in combination and in patterns of
construction that are distinctive to the region and the period of construction, play an important
part in defining the values and character of the historic built environment within The Prospect
and beyond it boundaries.
The choice of materials for new construction can help achieve the objective of complementary design
for new construction, and it is recommended that architects and designers look to this range of
materials for inspiration.
Buildings in The Prospect are of wood frame construction and generally clad with wooden or
stucco materials, such as horizontal cedar shingles, lapped siding, and traditional mortar stucco.
The informed use of these materials in new design can ensure a continuity of material tradition
and visual characteristics, in the future evolution of the neighbourhood.
GUIDELINES FOR BUILDING MATERIALS - NEW CONSTRUCTION
RECOMMENDED
NOT RECOMMENDED
The use of traditional building materials that
are local to the neighbourhood and the region.
For example:
o Wood trims, soffit and fascia
o Cedar shingle siding
o Horizontal wood siding
o Rough-cast stucco siding
o Sawn cedar roofing shingles
o Painted cedar railings and exterior
architectural details
o Natural local stone; granite and basalt
o Traditional mortars
o Painted metal and ironmongery
Imitative modern materials. For example:
o Fiberglass
o Textured fiber-cement shingles and siding
o Aluminum or vinyl siding, soffit, facias
o Pressure-treated wood
o Cultured stone
o False brick cladding panels
o Stainless steel or galvanized metal finishes
Materials used for traditional styles in new
construction should complement the
dimensions and profiles of historic materials.
Colour selections that are historically accurate
or complementary to existing house colours.
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Examples of imitative modern materials and finishes that are not recommended for new construction in
The Prospect.
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C5 - Windows and Doors
INTENT
Windows and doors in new design should play a leading role in the principle of "complementary
design," using fenestration patterns established in the historic properties of the area as a guide.
Historic buildings in The Prospect neighbourhood promote window openings in a solid wall, the glass
being inset, with a proper reveal, sill and trim. Most windows and doors in The Prospect have a vertical
emphasis, and windows and doors in new design and construction should reflect this prevailing model,
adopting similar patterns of window and door proportions, placements and configurations.
Wooden-framed sash windows are encouraged, and where new design is being undertaken in a
historical architectural style, windows, doors and architectural details should be designed and detailed
appropriately, using traditional materials and details. Directly imitative detailing in modern materials
such as plastic and aluminum should be avoided.
GUIDELINES FOR WINDOWS AND DOORS
RECOMMENDED
NOT RECOMMENDED
Vertically oriented windows with true divided
lights.
Windows with false muntins.
Windows and doors that are recessed from the
exterior plane of the building in a traditional
reveal.
Mirrored or reflective glass.
Wooden or metal clad wooden windows in
contemporary design, using the form of
traditional window architecture for inspiration.
Large horizontal picture windows with
non-divided lights.
Wooden or metal clad wooden windows in
historic design, built using traditional joinery.
Painted wooden doors, either solid or with
dividing lights.
Metal or vinyl doors.
Use of paint and stain colours based on the
historic buildings of The Prospect
neighbourhood.
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Examples of window types and patterns on existing buildings in The Prospect.
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C6 - Lighting for New Construction
INTENT
Exterior lighting used in new design should be used minimally and in such a way as to reflect
traditional patterns of lighting of porches, driveways and paths.
Lighting schemes should in all cases be subtle and not draw undue attention to any new
construction. The use of soffit down-lighting can have a negative impact on the historic
neighbourhood through sharp contrast with the subtly lit existing properties and streetscape.
These and other lighting elements mounted at an elevated level on a building should be avoided.
In contrast, low-level entrance garden and pathway lighting cast toward the ground can positively
impact the streetscape.
GUIDELINES FOR LIGHTING - NEW CONSTRUCTION
RECOMMENDED
NOT RECOMMENDED
Lighting of new construction should follow
precedent set by protected buildings in
The Prospect neighbourhood.
Soffit or high-level lighting.
Low-level lighting for porches, driveways
and pathways.
Security lighting without timers.
Use of warm cast and low energy
illumination to ensure subtle lighting in the
streetscape.
Lighting that projects into neighbouring
properties.
The practice of 'Dark Sky' lighting principles.
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C7 - Driveways for New Construction
INTENT
Driveways in new construction should continue the pattern of narrow drives, flanked by
vegetation, that is a characteristic of the neighbourhood.
It is the intention of this section of the guidelines to encourage minimal hard surface paving and large
outdoor parking areas within The Prospect neighbourhood. Accepting the requirement of new design
and construction to provide vehicle access to individual properties, it is a general recommendation that
this should be done in a way that is consistent with the historic patterns of access in The Prospect
neighbourhood. As part of this, the materials used for new driveways should reflect the traditional
landscape materials described in Section A4.
GUIDELINES FOR DRIVEWAYS - NEW CONSTRUCTION
RECOMMENDED
NOT RECOMMENDED
Use of permeable landscaping materials for
driveways, boulevards and small street
parking areas, such as pavers, bricks, or other
permeable materials.
Expansive paved areas.
Use turf borders and centre strips, vegetation,
planter beds, stone walls, garden "room"
entries and/or temporary planted containers
to help driveways and parking areas read
more as garden spaces.
Faux-brick or stamped concrete.
Wooden overhead structures, such as
pergolas or trellis work, that is sympathetic to
the historic character of The Prospect
neighbourhood.
Driveways, garages or carports at the front of
properties.
New driveways should respect the privacy of
neighbouring houses.
Circular or U-shaped driveways with two
entrances.
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Section D - Guidelines for Site Planning
WHO THESE GUIDELINES ARE FOR
The Guidelines for Site Planning apply to all properties (new and existing) within the Prospect HCA.
INTENT
The Guidelines for Site Planning provide a resource for retaining and enhancing the neighbourhood's
landscape character, so that new landscapes will be developed in balance with existing ones. Since
much of the heritage value of the Prospect HCA stems from its natural heritage, these guidelines
emphasize the importance of retaining and enhancing natural heritage and habitat values within the
neighbourhood.
These guidelines are not intended to mandate a historical landscape style, even when a house may be
protected (contemporary landscape expressions can be designed to work with a heritage home),
especially since residential landscapes and gardens are continuously evolving and changing. Neither are
these guidelines intended to restrict or constrain the gardening activities of residents. Instead, the
Guidelines for Site Planning are aimed at conserving those character defining elements of the
neighbourhood described in the SOS (e.g. views towards the ocean and Mt. Baker, views from
Rattenbury's Beach towards the neighbourhood, etc.).
The District of Oak Bay has a robust Tree Protection Bylaw and Urban Forest Management Strategy that
both apply to the Prospect HCA. The Guidelines for Site Planning are intended to supplement these
existing policies, as appropriate, within the context of The Prospect neighbourhood.
GUIDELINES FOR SITE PLANNING
RECOMMENDED
NOT RECOMMENDED
Disruption of the existing character of streetscapes
and viewscapes, both natural and constructed.
Encourage the conservation and stewardship of
streetscapes and neighbourhood character,
including historic buildings and structures, their
relationships to gardens and significant
landscape features.
Changes to buildings, gardens and other structures
that significantly alter the legibility of the history
of the area, or that change the primarily
residential character of The Prospect
neighbourhood.
Retain existing trees, other vegetation, natural
features and topography, where possible, as a
reflection of Oak Bay's character and for their
environmental values.
Changes to the natural topography that disrupt the
appearance and physical form of the
neighbourhood.
Historic landscapes and features should be
regarded as superior (not subservient) to historic
buildings and the desire to make alterations and
additions to such buildings.
Changes to the ecology of The Prospect
neighbourhood in general, and especially to
environmentally sensitive zones such as the
shoreline.
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Trees, vegetation and shoreline at Rattenbury's Beach are examples of significant natural features and
topography within The Prospect.
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D1 - Land Use and Neighbourhood Character
INTENT
Future development within The Prospect neighbourhood should celebrate and contribute to existing
patterns of land use to ensure continuity and legibility of the history of the neighbourhood.
The Prospect neighbourhood is primarily residential in character but has a mix of public and private land
uses, with a significant variety of lot sizes and configurations. The neighbourhood has important
connections with the water via Rattenbury's Beach, and to the wider community of Oak Bay, via the
larger roads such as Beach Drive and Oak Bay Avenue.
Existing and historic patterns of land use on both public and private land are highly significant in
understanding the historical development of the neighbourhood, and to defining the character of the
neighbourhood in the present day.
GUIDELINES FOR LAND USE AND NEIGHBOURHOOD CHARACTER
RECOMMENDED
NOT RECOMMENDED
Preserve the residential character of The
Prospect neighbourhood.
Commercial development.
Maintain the mix of public and private
property land uses.
Restricted access to Haynes Park.
Preserve the relationships between existing
front gardens and homes.
Development or infill of front gardens.
Maintain the ratio of lot size and scale to
streetscape.
Infill between buildings such that views from
public corridors (e.g., roads or pedestrian ways)
are obstructed.
Development of uniform lot
configurations or panhandle lots.
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Example of an existing pedestrian thoroughfare leading to Haynes Park that exists in the open space
between buildings.
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D2 - Streetscapes
INTENT
The pedestrian experience of the area's streetscapes, their rural character and natural features vary
widely across the neighbourhood. Changes to public and private streets and boulevards and
streetscapes should complement and reflect the locally distinctive character existing across the HCA.
Throughout the history of the neighbourhood, streetscapes have evolved into a harmonious integration
of narrow roadways, buildings, trees, garden and natural vegetation. Existing and historic patterns of
land use on both public and private property are highly significant in understanding the historical
development of the neighbourhood, and to defining the character of the neighbourhood today.
The Prospect is characterized by an eccentricity of streets and lanes that curve, vary in length, or have
no outlet; and are important for their reflection of the early design of this upscale neighbourhood. While
originally designed as both a response to the topography and to emphasize the elite nature of the
original neighbourhood, these irregular streets form part of the character and charm of the area today.
GUIDELINES FOR STREETSCAPES
RECOMMENDED
NOT RECOMMENDED
Retain the rural character and natural features
of existing streetscapes.
New multi-vehicle parking areas.
Maintain and/or re-establish relationships of
streetscapes to the original/historic
neighbourhood plan.
New sidewalks.
Retain variety of setbacks and boulevards
between roadways, properties and buildings.
New curbs.
Maintain width and pattern of existing
sidewalks.
Removal / alteration of existing sidewalks
and boulevards.
Maintain existing pattern of small parking
areas tucked amongst vegetation.
Temporary features that are incongruous
with the traditional character of The
Prospect (e.g., traffic calming chicanes made
from concrete lockblocks).
Minimize vehicular access points onto
roadways.
Formalize existing transitions between
boulevard and road surfaces.
Preserve existing hardscape elements in the
landscape.
Straightening roads.
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GUIDELINES FOR STREETSCAPES
RECOMMENDED
NOT RECOMMENDED
Maintain pedestrian dominated streets.
New landscape features / plantings that
obscure historic building features.
Boulevard plantings.
Use of traffic calming strategies that
complement existing landscape features.
Fences and hedges do not enclose front yard
completely.
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Examples of streetscapes within The Prospect showing wide boulevards and mature vegetation.
Examples of planted 'soft' boulevards with mixed vegetation and no curbs in the streetscape.
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D3 - Visual Relationships
INTENT
Views along streetscapes, mountain views and vistas from Rattenbury's Beach to the ocean and
offshore islands should be retained through management of existing vegetation and tree canopy. New
construction and new landscape design should complement and enhance existing visual relationships.
Viewscapes are a significant part of the distinctive character and significance of The Prospect
neighbourhood. Contributing to the aesthetic value of the place are key views to the waters of Oak Bay
and to mountains such as Mount Baker, the Cascades and the Olympics, and to Mary Tod, Chatham,
Discovery and other offshore islands. Internal views include layered vistas of houses at different
elevations, trees and shrubs, and views up and down streets and lanes.
The neighbourhood accommodates walking tours and heritage interpretation by providing safe
pedestrian thoroughfares and unobstructed views of significant heritage homes, from publicly accessible
spaces.
GUIDELINES FOR VISUAL RELATIONSHIPS
RECOMMENDED
NOT RECOMMENDED
Retain existing ocean, mountain, offshore
island and streetscape views.
Obstruction of existing ocean, mountain,
offshore island and streetscape views.
Retain existing views from Beach Drive and
Rattenbury's Beach.
Impede or obstruct existing views from
Beach Drive and Rattenbury's Beach.
Preserve existing boundary features such as
historic walls, gates and formal entrances.
Alterations to vegetation and healthy trees that
diminish layered views that benefit the public.
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External and internal views in The Prospect demonstrating the importance of visual relationships to the
character of the neigbourhood.
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D4 - Natural Areas and Ecological Features
INTENT
Efforts should be made to retain existing natural areas and ecological features in the public domain for
their contribution to wildlife habitat, both terrestrial and marine.
The Prospect neighbourhood includes areas of special ecological and natural interest including the
waterfront of Rattenbury's Beach, Haynes Park and Garry oak meadows.
Because of the human impact on the natural landscape, all vegetation in the HCA and the wider region
will contain some non-native species. Ecological purity should be eschewed in favour of an approach
that supports the protection of habitat with a major component of native species.
GUIDELINES FOR NATURAL AREAS AND ECOLOGICAL FEATURES
RECOMMENDED
NOT RECOMMENDED
Respect ecologically sensitive areas and
species at risk.
Development within ecologically sensitive
areas (except as necessary to provide
environmental protection measures).
Contribute to wildlife and bird habitat, both
terrestrial and marine.
Development of shoreline. Removal of native
vegetation.
Favour the establishment of native plant
species in the public domain and restoration
of natural ecosystems in small fragments of
habitat where possible.
Retain native vegetation.
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Haynes Park with Garry oak trees.
Shoreline of Rattenbury's Beach.
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D5 - Vegetation
INTENT
Existing patterns of vegetation and tree canopy should be conserved and managed to promote the
environmental and aesthetic benefits they make to The Prospect.
The Prospect neighbourhood is significant for its mature vegetation; towering coniferous trees
like Douglas Fir (Pseudotsuga menziesii) and Garry oak (Quercus garryana) are interspersed with a
lower canopy of deciduous and coniferous trees along streetscapes and on individual properties.
These contribute both to the present day natural character of the area, and to the legibility and
understanding of the history of land use and historic gardens over time.
GUIDELINES FOR VEGETATION
RECOMMENDED
NOT RECOMMENDED
Protect remaining areas with significant
cover of native plants.
Any construction or other activity that is
likely to damage the future health of
existing trees.
Retain significant trees.
Removal of healthy, mature trees, shrubs
and hedges.
Prioritize a tree species mix on public
boulevards that is appropriate to the scale of
the streetscape, with a preference for native
species and particularly Garry oak.
Where tree loss is unavoidable, plant
replacement trees at a ratio of 2:1.
Retain layered vegetation of trees, shrubs
and hedges.
Encourage the preservation of healthy
trees, shrubs and hedges or, where
necessary, their replacement with suitable
plantings to preserve privacy and the
overall natural green character of the area.
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Native Garry oak trees bordering a pedestrian path in The Prospect neighbourhood.
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D6 - Landforms
INTENT
Alteration of existing topography should be avoided or minimized, where it is not practical to avoid
disruption, to conserve the neighbourhood's natural characteristics.
GUIDELINES FOR LANDFORMS
RECOMMENDED
NOT RECOMMENDED
Respect and maintain the sloped
topography that rises in elevation from the
foreshore to the higher elevations of York
Place.
Removal of natural rock outcroppings for
pools, site circulation and other activities.
Retain topographical features, including
natural rock outcroppings.
Removal of topographical features including
natural rock outcroppings, for the
construction of basements or similar
structures, extending beyond the footprint
of the building.
Where it is necessary to alter or remove
topographical features to facilitate the
construction of basements or similar
structures, this should be done in a way
that is invisible to the public (e.g., contained
within the footprint of the building).
Where it is necessary to alter or remove
topographical features, for any reason,
minimize removal or site disturbance.
Incorporate natural rock outcroppings
within landscape design.
Design alterations, additions and new
construction that conform to naturally
sloping topography.
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Examples of the bedrock outcroppings that characterize the topography of The Prospect.
Integration of natural topography within the built environment of The Prospect.
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D7 - Landscaping Materials
INTENT
Existing heritage landscape materials on private and public land should be conserved and
celebrated. Where new landscape features are introduced, materials should be
complementary to traditional patterns of material use and not introduce imitative or
incompatible landscape material.
Traditional and historically authentic landscaping materials such as wood, stone and wrought
iron, contribute to the present day character of the area and communicate an important message
about traditional practice that is mirrored by the construction materials of traditional homes in
the area. Where new materials are introduced, they should reflect the historic material to
promote the existing connectivity of landscape to built form.
GUIDELINES FOR LANDSCAPING MATERIALS
RECOMMENDED
NOT RECOMMENDED
New landscape features that use stone,
wrought iron, wood, and other natural
materials.
Synthetic or manufactured materials that are
imitative of historic natural materials.
Make repairs with traditional materials.
Landscape features made from aluminum
(fences and gates).
Select new materials that match those used
in the historic landscape of The Prospect
neighbourhood.
Use of cultured stone, plasticized wood
products, or stamped/coloured concrete.
Muted or diffused, naturally coloured
lighting.
Introduction of asphalt paving.
Deer fencing that does not restrict
viewscapes.
Traditional chain link fences.
Artificial turf.
Pressure treated timber retaining walls.
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Stone wall and wrought iron gate belonging to the garden of The Gibson House property, demonstrating
the use of traditional materials that help define the character of the neighbourhood.
Natural materials such as gravel, stone and planted vegetation typical of the historic landscape.
District of Oak Bay - The Prospect Heritage Conservation Area
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D8 - Landscape Design
INTENT
Landscape design should enhance the viewscapes and streetscapes expressed in the SOS. Planting
should be richly layered and diverse to reflect historic patterns. Designs should integrate existing and
newly planted trees, border plantings and built features, such as retaining walls, to complement
historic patterns of garden design.
The guidelines for landscape design are intended to manage aggregate changes to landscapes, rather
than small or inconsequential changes made to individual properties. The objective of these guidelines
is to manage landscape within The Prospect in ways that improve it.
As stated in the Oak Bay OCP, residential development and redevelopment projects should minimize
disturbance of existing trees, topographic features or landscaped areas that contribute character and
quality to the streetscape. When these areas are disturbed, new features and landscaped areas should
be installed that contribute to the streetscape and are consistent with other well developed landscapes
in The Prospect neighbourhood.
There is a desire to maintain the public landscape as it currently is.
GUIDELINES FOR LANDSCAPE DESIGN
RECOMMENDED
NOT RECOMMENDED
Minimize site disturbance.
New construction that alters/changes natural
grades.
Water permeable driveways.
Impermeable driveways and paths (e.g.,
asphalt or concrete).
Mitigate visual impact of retaining walls, with
stepped construction and/or landscape
screening with vegetation.
Inappropriate lighting of landscape features.
Informal pedestrian ways.
Reduction or removal of wildlife and bird
habitat.
Screening with natural vegetation.
Destruction, removal or relocation of historic
features in the landscape such as gates,
stone walls, house numbers, statuary, etc.
Contribution to wildlife and bird habitat.
Terraced retaining walls that incorporate
plantings.
Retention, reinstatement or repair of historic
features in the landscape such as gates, house
numbers, statuary, etc. at original locations.
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Terraced retaining walls that incorporate plantings and respect the natural topography.
Examples of screening and layering with natural vegetation.
District of Oak Bay - The Prospect Heritage Conservation Area
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Appendix 1 - Glossary of Terms
Adaptive Re-Use Conversion of a building into a use other than that for which it was designed, such as
changing a power plant or warehouse into a gallery space or housing.
Archaeological Site A site that contains the physical remains of past human activity, the physical
evidence of how and where people lived in the past, and that may be of regional, provincial, national or
international significance.
Artifact An object made by a human being, typically an item of cultural or historical interest.
Character Defining Element The materials, forms, location, spatial configurations, uses and cultural
associations or meanings that contribute to the heritage value of a historic place, which must be
retained to preserve its heritage value.
Conservation All actions, interventions, or processes that are aimed at safeguarding the character
defining elements of a cultural resource to retain its heritage value and extend its physical life. This may
involve preservation, rehabilitation, restoration, or a combination of these and other actions or
processes.
Context Property A property within the HCA that does not necessarily have historic significance but
contributes nonetheless to the overall character and composition of the neighbourhood as described in
the Statement of Significance. For example, buildings within Context Properties may be valued for their
complementary form, scale and massing, or their relationships to adjacent property boundaries.
Cultural Landscape Any geographical area that has been modified, influenced, or given special cultural
meaning by people. Designed cultural landscapes were intentionally created by human beings.
Associative cultural landscapes are distinguished by the power of their spiritual, artistic, or cultural
associations, rather than their surviving material evidence. Evolved cultural landscapes developed in
response to social, economic, administrative, or religious forces interacting with the natural
environment. They fall into two sub-categories:
o
Relict landscapes in which an evolutionary process came to an end. Its significant distinguishing
features are, however, still visible in material form.
o
Continuing landscapes in which the evolutionary process is still in progress. They exhibit
significant material evidence of their evolution over time.
Demolition The systematic and deliberate destruction of a building (or fixture, chattel, and or
equipment) or portion thereof.
Designated or Designation Local government land use regulation intended to give long-term protection
to heritage property. It is a form of legal protection and the primary form of long-term local government
regulation that can prohibit demolition.
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Fabric In conservation, fabric means all the physical material of a place that is the product of human
activity.
Form The architectural design and physical construction characteristics of a building.
Habitat The area or type of site where an individual or wildlife species naturally occurs or depends on
directly or indirectly in order to carry out its life processes, or formerly occurred and has the potential to
be reintroduced.
HCA Heritage Conservation Area
Heritage Alteration Permit An authorization by local government that allows certain kinds of changes to
be made to protected heritage property.
Heritage Conservation Area A designated historic district or conservation area, which denotes a
neighbourhood unified by a similar use, architectural style and / or historical development. A Heritage
Alteration Permit is required to make any changes in a Heritage Conservation Area.
Heritage Register A list of sites that have been recognized for their heritage value by Council Resolution.
Heritage Resource Any place or object of cultural value.
Heritage Value The aesthetic, historic, scientific, cultural, social, or spiritual importance or significance
for past, present, or future generations. The heritage value of a historic place is embodied in its
character defining materials, forms, location, spatial configurations, uses, and cultural associations or
meanings.
Historic Place A structure, building, group of buildings, district, landscape, archaeological site or other
place in Canada that has been formally recognized for its heritage value.
Indigenous Native to a particular place.
Inspection A survey or review of the condition of a historic place and its elements to determine if they
are functioning properly; to identify signs of weakness, deterioration or hazardous conditions; and to
identify necessary repairs. Inspections should be carried out on a regular basis as part of a maintenance
plan.
Intangible Heritage The practices, representations, expressions, knowledge and skills, as well as
associated tools, objects, artifacts and cultural spaces that communities and groups recognize as part of
their history and heritage.
Integrity Material wholeness, completeness, and unimpaired condition of heritage values or the
completeness of an ecosystem in terms of its indigenous species, functions, and processes.
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Intervention Any action, other than demolition or destruction, that results in a physical change to an
element of a historic place.
Landform A specific geomorphic feature on the surface of the earth, ranging from large-scale features
such as plains, plateaus, and mountains to minor features such as hills, valleys, and alluvial fans.
Landscape An expanse of natural or human-made scenery, comprising landforms, land cover, habitats,
and natural and human-made features that, taken together, form a composite.
Maintenance Routine, cyclical, non-destructive actions necessary to slow the deterioration of a historic
place. It entails periodic inspection; routine, cyclical, non-destructive cleaning; minor repair and
refinishing operations; replacement of damaged or deteriorated materials that are impractical to save.
Massing Refers to the overall composition of the exterior of the major volumes of a building in the
context of its site.
Minimal Intervention The approach that allows functional goals to be met with the least physical
intervention.
Native Wildlife Species endemic (indigenous) or naturalized to a given area.
Naturalized A non-native species that does not need human help to reproduce and maintain itself over
time in an area where it is not native. Naturalized plants often form the matrix for a novel ecosystem.
Non-Native A species introduced with human help (intentionally or accidentally) to a new place where it
was not previously found.
Object A discrete item that has heritage value and can be collected or conserved. See also Artifact.
Preservation The action or process of protecting, maintaining and / or stabilizing the existing materials,
form and integrity of a historic place or of an individual component, while protecting its heritage value.
Rehabilitation The action or process of making possible a continuing or compatible contemporary use of
a historic place or of an individual component, through repair, alterations, and / or additions, while
protecting its heritage value.
Registered A property that is identified in a community registry of heritage properties.
Restoration The action or process of accurately revealing, recovering or representing the state of a
historic place or of an individual component, as it appeared at a particular period in its history, while
protecting its heritage value.
Scale The sense of proportion or apparent size of a building or building element as created by the
placement and size of the building in its setting.
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Schedule An official list of properties, other buildings, land or features within a Heritage Conservation
Area.
Scheduled Property A property, other buildings, land or features within the Heritage Conservation Area,
that appears on the Schedule.
Sense of Place The feeling associated with a place, based on a unique identity and other memorable or
intangible qualities.
Site Circulation Movement patterns of pedestrian and vehicular traffic.
Statement of Significance A statement that identifies the description, heritage value, and character
defining elements of a historic place. A Statement of Significance is required in order for a historic place
to be listed on the BC Register of Historic Places.
Stewardship Linked to the concept of sustainability, stewardship is an ethic that embodies responsible
planning and management of cultural and natural resources.
Streetscape The visual elements of a street, including the pavement (dimensions, materials), sidewalks,
adjoining buildings and open space frontages, street furniture, lighting, trees and plantings that combine
to form the street's character.
Sustainability A group of objectives (economic, social, and environmental - the 'triple-bottom line') that
must be coordinated and addressed to ensure the long-term viability of communities and the planet.
Topography The shape, relief, arrangement or surface configuration of the physical features of an area
such as its hills, valleys or rivers.
Vernacular Heritage or Vernacular Building The traditional and natural way by which communities
house themselves. Examples of the vernacular may be recognised by:
o
A manner of building shared by the community;
o
A recognizable local or regional character responsive to the environment;
o
Coherence of style, form and appearance, or the use of traditionally established building types;
o
Traditional expertise in design and construction which is transmitted informally;
o
An effective response to functional, social and environmental constraints;
o
The effective application of traditional construction systems and crafts.
View or Viewscape What can be seen from an observation point to an object(s), particularly a landscape
or building.
District of Oak Bay - The Prospect Heritage Conservation Area
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Statement of Significance
Provided for Reference Only
District of Oak Bay - Oak Bay Heritage
January 2020
Statement of Significance
The Prospect Heritage Conservation Area
Oak Bay, BC
Appendix 2 - Statement of Significance
District of Oak Bay - Statement of Significance
The Prospect Heritage Conservation Area
2
One of the Storybook houses at Patio Court on
San Carlos Avenue.
The Prospect Heritage Conservation Area
Statement of Significance
Table of Contents
Historical Chronology ............................................................. 3
Statement of Significance ...................................................... 7
Acknowledgement
The District of Oak Bay acknowledges with respect the traditional
territory of the Coast and Straits Salish peoples, and specifically the
Lekwungen speaking people, known today as the Songhees and
Esquimalt nations, whose historical relationships with the land
continue to this day.
Prepared by:
Denise Cook Design
604.626.2710
[email protected]
District of Oak Bay - Statement of Significance
The Prospect Heritage Conservation Area
3
York Place, Oak Bay Avenue, Prospect Place,
Broom Road, San Carlos Avenue and Beach Drive
District of Oak Bay
Historical Chronology
1858
The Hudson's Bay Company consolidates its land holdings in
the area around Oak Bay by signing treaties with local First
Nations including the Chekonein and Chilcowitch bands.
Joseph D. Pemberton surveys Oak Bay. He owns 1200 acres
of land, including Section LXIX that includes Oak Bay Avenue,
Prospect Place, San Carlos Avenue and a portion of Mt. Baker
Avenue (later Beach Drive) and the future York Place, using
the land primarily for livestock farming.
1889
The Haynes and Johnston families settle in the Oak Bay area.
1890s
The Oak Bay Camp, a summer resort organized by the
Haynes and Johnston families, operates in tents on
Rattenbury's Beach.
1891
The Oak Bay Land and Improvement Company is formed to
develop the land near Oak Bay Beach. The development is
called Oak Harbor and includes the seaside part of Section
LXIX with the properties on the east side of York Place,
between Oak Bay Avenue and the boundary of Section LXI.
Oak Bay Avenue is listed in local directories. Originally
surveyed by Joseph Pemberton, it provides access to the
seafront and beach.
The Oak Bay tramway line opens.
1892
The consolidation of land that will result in the Prospect area
begins with property transfer: "John Edward Crane to Ellen
Turner, 1/3 of 15 acres of Section 69."
1893
The Mount Baker Hotel opens, solidifying Oak Bay as a
popular seaside resort.
Land is transferred from "B. Boggs, W.D. McGregor and
Ellen Turner to C.A. Vernon." This portion of land later
transferred from C.A. Vernon to J.G. Tiarks and F.M.
Rattenbury as part of their 15 acre estate
1898
Prominent Victoria architects, John Gerhard Tiarks and
Francis Mawson Rattenbury, purchase 15 acres of land
extending from Oak Bay Avenue northward to present day
San Carlos Avenue. The legal transfer reads: "J.G. Tiarks
and F.M. Rattenbury, 15 acres of Section 69 except lots 15,
26, 41 and 46, Map 396."
District of Oak Bay - Statement of Significance
The Prospect Heritage Conservation Area
4
Historical Chronology Continued...
1898
John Tiarks designs five homes within the 15 acre parcel,
including Annandale for Sir Charles Hibbert Tupper, Minister
of Justice and the Attorney General of Canada, and its twin
Garrison House (destroyed c1930s) built for the Honourable
Frederick Peters, Premier and Attorney General of Prince
Edward Island. Francis Rattenbury, architect of The
Empress Hotel and Parliament Buildings, plans the grounds
for, and constructs, his residence Iechinihl (Indigenous term
meaning "a place of good things") on the Oak Bay waterfront
overlooking the beach with Mount Baker and the Cascade
Range beyond.
Mount Baker Avenue is listed in local directories.
1900
Samuel Maclure designs the Captain Mallascott Richardson
House on York Place (subsequently the site of Gibson
House), which includes a summer house and tennis court.
1906
The Corporation of the District of Oak Bay is established.
1910
Land speculation spurs subdivision and development in Oak
Bay and farms begin to give way to significant residences.
1919
The Gibson House (built on the former site of the Captain
Mallascott Richardson House moved down the hill to
Woodlawn Crescent) begun by Francis Rattenbury and
completed by Samuel Maclure and Ross Lort, is built on
York Place, perched high on an outcrop.
1920s
An active decade of significant residential development in
the area by notable architects: one home designed by
Ralph Berrill, four homes by Samuel Maclure, and seven
homes by K.B. Spurgin and J. Graham Johnson.
1935
1980s
The Glenlyon School moves to its present Beach Drive
location in the former Francis Rattenbury home.
1940s-
Ongoing infill of houses, most successfully absorbed into
existing character and street plan.
1990
The York Place development is constructed as a quiet
cul-de-sac of seven homes around the estate of the
Rattenbury designed Judge Peter Secord Lampman House
at 1630 York Place.
District of Oak Bay - Statement of Significance
The Prospect Heritage Conservation Area
5
Site Context
Approximate proposed area of The Prospect HCA. Future expansion of this
boundary could be a consideration.
Note: The solid yellow line depicts the proposed HCA boundaries. The
dashed yellow line identifies the adjoining Glenlyon Norfolk School
campus with its three heritage designated buildings on the original
Rattenbury estate.
District of Oak Bay - Statement of Significance
The Prospect Heritage Conservation Area
6
The Area: The Early Vision Most of the proposed Heritage Conservation Area
is within the original boundary of the larger Oak Harbor development of 1891.
Oak Harbor c.1891. (District of Oak Bay Archives)
The Area: Present Day
Note: The solid green line depicts the proposed HCA boundaries. The
dashed green line identifies the adjoining Glenlyon Norfolk School
campus with its three heritage designated buildings on the original
Rattenbury estate.
District of Oak Bay - Statement of Significance
The Prospect Heritage Conservation Area
7
Statement of Significance
Description
The Prospect Heritage Conservation Area includes York Place,
San Carlos Avenue, a portion of Beach Drive and Oak Bay Avenue, and
includes both Prospect Place and Broom Road. It also includes the
Glenlyon Norfolk School, formerly the Francis Rattenbury residence, the
shoreline of Rattenbury's Beach and Haynes Park.
The area is a significant cultural landscape with a sloped topography,
narrow scenic roads, significant architecturally designed houses and a
location fronting the Oak Bay beachfront.
A Rattenbury designed Shingle and Tudor Revival
home.
View of Rattenbury's Beach, mature trees and
houses on Beach Drive.
Values
The Prospect Heritage Conservation Area is significant for its aesthetic,
historic, social, natural history and educational values, particularly its
representation of the origins of the Oak Bay community in the late 19th
century, the leafy suburban character of its evolved cultural landscape,
and its mix of architecturally significant and more modest residences.
The Prospect is significant for its use by First Nations for millennia. While
more widely understood and acknowledged, the colonial history of this
area is only a brief chapter in the overall history of human occupation.
There has been Indigenous land use in this area for living, fishing, food
and
medicine
gathering
since
time
immemorial.
There
are
archaeological sites recorded within the boundary of The Prospect, and
significant sites nearby, especially in the area of Bowker Creek and
Willows Beach. Evidence suggests these sites are between 3000 and
4000 years old.
The area is important for its integration into a landscape with features
such as steep topography that rises in elevation from the foreshore to
the higher elevations of York Place, which give some homes a prominent
physical status and considerable views; bedrock outcrops; and
Rattenbury's Beach and foreshore, all of which have a physical and
visual influence on the form of development and overall character of the
neighbourhood. The landscape is important for its ecologically
significant areas including rare wildlife and plant species, and its lush
vegetation, both native and ornamental, safeguards habitat for birds and
small mammals.
Originating in 1858 with politician and surveyor Joseph D. Pemberton's
survey of Oak Bay and evolving up to the present day, the area has
historic value as part of the pattern of growth of the Oak Bay community
in the late 19th century. It charts the evolution of the area from
Pemberton's large estate subdivision and farm to a unique leafy garden
suburb. It provides an understanding of the upper classes of Victoria
society, first as a beachside resort destination and later as an
aesthetically pleasing and high quality residential neighbourhood.
District of Oak Bay - Statement of Significance
The Prospect Heritage Conservation Area
8
Samuel Maclure designed summer house
overlooking site of former tennis court.
Trio of historic houses along Beach Drive.
Wrought iron Art Nouveau gates at Annandale.
As designed by its British architect-owners, this area of Oak Bay is
centered on prominent architect Francis Mawson Rattenbury's c.1898
estate plan, which saw Prospect Place constructed as the original
roadway leading through the 15 acre property to Rattenbury's house
overlooking the beach. The remaining buildings of Rattenbury's estate
- including the Residence, Coach House / Garage, and Boat House -
are important for their adaptive reuse and integration into the grounds
of Glenlyon Norfolk School.
Of particular importance in the area is the presence of significant
residences built with superior material and craftsmanship of the time,
and designed by some of BC's most prominent late 19th and early 20th
century architects such as Francis Rattenbury, Samuel Maclure, Karl
Spurgin, John Tiarks, Ralph Berrill, Percy L. James and others, often
interpreting classic residential building styles such as Queen Anne,
Tudor Revival and Classical Revival. The inclusion of contemporary
buildings by well-known late 20th century architects, including a 1996
house designed by Pamela Charlesworth and Campbell Moore's 1992
Barwin House, makes the area a showcase for some of BC's most
prominent architects' residential work for over a century.
As a complement to these significant architectural works, the
neighbourhood has maintained its primarily single family residential
nature, with generous lots, careful siting of buildings and lush
landscaping contributing to the successful integration of new residences
of varying style and scale. Important landscape features include building
setbacks and boulevards, and a variety of lot sizes and configurations.
Public open spaces such as Beach Drive, Rattenbury's Beach, and
Haynes Park alongside the work of early architects including the
summer house designed by Samuel Maclure suggest the lifestyles and
activities of early Prospect area residents.
Significant streetscapes have evolved into a harmonious integration of
narrow roadways, buildings, trees, garden and natural vegetation, with
remaining evidence of early large estate development and the
adaptation of neighbourhood design to the site's natural topography.
The eclectic arrangement of buildings and traces in the landscape, such
as openings in walls, overgrown gates, small pathways and laneways,
public staircases, a decorative well-head, and vegetation and tree
patterns, are valued for their physical manifestations of past patterns of
land use. Layers of vegetation are important for their contribution to the
bucolic nature of the neighbourhood and for softening harder elements
such as buildings, structures and roadways. Trees and plantings provide
screening between the street and private spaces, and create a peaceful
rural atmosphere, including large sequoia trees associated with the
garden development at Briarbrae, and others planted around 1912.
District of Oak Bay - Statement of Significance
The Prospect Heritage Conservation Area
9
Unique,
historic
concrete
sidewalk
with
decorative scored pattern.
Rock outcrop adjacent to informal pedestrian
path.
P.L. James designed Beach Drive home built in
1912.
The eccentricity of the streets and lanes that curve, vary in length, or
have no outlet are important for their reflection of the early design of this
upscale neighbourhood. While originally designed as both a response
for the topography and to emphasize the elite nature of the original
neighbourhood, these irregular streets form part of the character and
charm of the area today.
Landscape details are fundamentally integral to the character of the
place. They include stone walls, some with capped pillars, along most
streets; fences; narrow sidewalks; lack of curb and gutter; and the Lych
Gate and stone wall at York Place and Oak Bay Avenue.
Contributing to the aesthetic value of the place are key views to the
waters of Oak Bay and to mountains such as Mount Baker, the
Cascades and the Olympics, and to Mary Tod, Chatham, Discovery and
other offshore islands. Internal views include layered vistas of houses at
different elevations, trees and shrubs, and views up and down streets
and lanes.
The important rural character of the place and country lane feel has
been retained, even in the presence of new construction which, to date,
manages to mostly fit into the character of the neighbourhood.
Character Defining Elements
Evidence of Land Use
-
Primarily residential character and use of the neighbourhood
-
Educational use through Glenlyon Norfolk School
(former Rattenbury estate)
-
Beach use for recreation
-
Streetscapes of diverse character on all roadways
-
Haynes Park
-
Mix of public and private land uses
Land Patterns
-
A variety of lot sizes and configurations
Spatial Organization
-
Location fronting Rattenbury's Beach
-
Streets conforming to original neighbourhood plan
-
Streets that vary in length and width and some that have no outlet
-
Groups or clusters of significant buildings
-
Varied landscape setbacks and boulevards between roadways,
properties and buildings
District of Oak Bay - Statement of Significance
The Prospect Heritage Conservation Area
10
Prospect
Place
stone
wall
with
natural
vegetation.
Samuel Maclure designed decorative well-head.
Lych Gate at York Place and Oak Bay
Avenue.
Visual Relationships
-
Layered internal views
-
Views up and down streets
-
Mountain views from all streets
-
Views from Rattenbury's Beach
-
Views to Mary Tod, Chatham, Discovery and other offshore islands
Circulation
-
Curved narrow roadways, generally without curbs, and on some
streets, no sidewalks
-
Narrow sidewalks on other streets, some with distinct patterns in the
concrete
-
Streets and lanes with a rural character and natural features
-
Pedestrian dominated streets
-
Small parking areas tucked amongst vegetation
-
Minimal access points from most properties onto roadways
Ecological Features
-
Native and naturalized vegetation
-
Wildlife and bird life habitat, both terrestrial and marine
-
Rattenbury's Beach, foreshore and bank with natural vegetation
Vegetation
-
Layered vegetation of trees, ornamental mature shrubs and
groundcovers
-
Significant coniferous and deciduous trees such as Sequoiadendron
and Garry oak, and deciduous canopy trees along streetscapes and
individual properties
-
Cultivated gardens
-
Natural planting in boulevards and along road edges
-
Native shrubs and mosses
-
Hedges
-
Marine plants in beach areas
Landforms
-
Sloped topography that rises in elevation from the foreshore to the
higher elevations of York Place
-
Bedrock outcroppings
Water Features
-
Rattenbury's Beach
-
Ornamental well-head
District of Oak Bay - Statement of Significance
The Prospect Heritage Conservation Area
11
Built Features
-
Significant
residences
built
with
superior
materials
and
craftsmanship, designed by some of BC's most prominent late
19th and early 20th century architects
-
A wide variety of residential buildings of varying types, scales, styles
and ages
-
Summer house designed by Samuel Maclure
- Buildings protected by designation, registration and covenant
- Remaining historic, neighbourhood scale stone walls along streets
and lanes such as York Place, Oak Bay Avenue, Prospect Place,
Broom Road and Beach Drive
- Presence of fences along property lines, and gates at driveway and
walkway entrances
- Lych Gate and stone wall at York Place and Oak Bay Avenue
- Samuel Maclure designed decorative well-head
- Public stairs and public benches
Intangibles and Social Traditions
- Historical and current street names and their meanings, including
Mt. Baker Avenue / Beach Drive; Prospect Street / Prospect Place;
Beach Avenue / Broom Road
- The ability of the neighbourhood to convey stories, connections to
colourful residents, historical scandals, dramatic lives and notable
figures through its character defining elements.
- The ability of the neighbourhood to be a place for historical walking
tours
Mount Baker painted by Samuel Maclure,
c.1890. (BC Archives PDP03773)
District of Oak Bay - Statement of Significance
The Prospect Heritage Conservation Area
12
Significant Heritage Properties
Property
Architect
Date of
Construction
Status
Annandale
Sir Charles Hibbert
Tupper House
1595 York Place
J.G. Tiarks
1897-98
Designated
Sandhurst
Arthur E. and Matilda A.
Haynes House
1512 Beach Drive
J.G. Tiarks
1898-99
Designated
Iechinihl
Francis Mawson
Rattenbury House, Coach
House, and Boat House
1701 Beach Drive
Francis M.
Rattenbury
1898, 1914 Designated
Schwengers House
1660 Prospect Place
J.G. Tiarks
1899-1900
Briarbrae
1605 York Place
Francis M.
Rattenbury
1904
Arran
1580 York Place
Samuel Maclure
1906-07
Lampman House
1630 York Place
Francis M.
Rattenbury
1907-08
Covenant
C. Mason Dubois House
1525 Prospect Place
Francis M.
Rattenbury,
alterations by
Samuel Maclure
1908
Registered
Sheilin
1535 Prospect Place
D.C. Frame
1909
Registered
J.W. Morris House
1558 Beach Drive
Percy Leonard
James, Douglas
James
1912
Gibson House
1590 York Place
Francis
M.
Rattenbury, Samuel
Maclure, Ross Lort
1919
Registered
Bide-A-Wee
Mrs. J. D. Helmcken
House
1538 Beach Drive
Samuel Maclure
1922
Designated
F. Hamilton and Elizabeth
R. Harrison House
2390 Oak Bay Avenue
Samuel Maclure
1923
District of Oak Bay - Statement of Significance
The Prospect Heritage Conservation Area
13
Significant Heritage Properties continued.
Property
Architect
Date of
Construction
Status
Florence Rattenbury
House
1513 Prospect Place
Samuel Maclure
1925
1542 Prospect Place
Samuel Maclure
1925
Patio Court
2390 San Carlos Avenue
K.B. Spurgin,
J. Graham Johnson
1927
Designated
Patio Court
2396 San Carlos Avenue
K.B. Spurgin,
J. Graham Johnson
1927
Designated
Patio Court
2402 San Carlos Avenue
K.B. Spurgin,
J. Graham Johnson
1927
Designated
Patio Court
2408 San Carlos Avenue
K.B. Spurgin,
J. Graham Johnson
1927
Designated
Patio Court
2414 San Carlos Avenue
K.B. Spurgin,
J. Graham Johnson
1927
Designated
Adamson House
1590 Beach Drive
K.B. Spurgin
1928
Designated
2376 Oak Bay Avenue
K.B. Spurgin
1928
Seldon Humphreys House
1621 Prospect Place
Ralph Berrill
1929
J. Harman House
1586 York Place
Percy Leonard
James, Hubert
Savage
1931
Registered
1532 Prospect Place
Additions, alterations
by J.H. Wade,
C.D. Stockdill 1949
(original architect
unknown)
1940
District of Oak Bay - Statement of Significance
The Prospect Heritage Conservation Area
14
Towards a Heritage Conservation Area
Definition
The District of Oak Bay can, by bylaw, define specific areas in the
Official Community Plan under Local Government Act [RSBC 2015]
Sections 614 - 618 to provide long term protection for a distinctive
heritage area that contains resources with special heritage value and /
or heritage character. A successful Heritage Conservation Area (HCA)
protects -- through policies, standards and guidelines -- the buildings,
landscape features, overall character, and context of a neighbourhood
within which identified protected heritage properties may be located.
Specific properties that are to be protected must be identified in the
bylaw.
In the Heritage Conservation Area, a Heritage Alteration Permit is
required to allow an owner to do the following:
-
Subdivision of a property
-
Addition of a structure
-
Addition to an existing structure
-
Construction of a new building
-
Alterations to a building, structure, land, or feature
Implementation
The following are the steps to be taken to achieve the creation of a
Heritage Conservation Area:
-
A process of planning and research, through which a community
identifies a distinctive area that it determines should be managed by long
term heritage protection
-
In consultation with the area property owners, the District of Oak Bay
agrees that a Heritage Conservation Area is the best tool to provide long
term protection
-
Consultation with area property owners regarding the control
mechanisms (including design controls) that may be included in the
bylaw
-
Preparation of a bylaw by the District to amend the Official Community
Plan to identify the Heritage Conservation Area. The bylaw must include:
o A description of the special features or characteristics which justify the
establishment of the Heritage Conservation Area
o The objectives of the Heritage Conservation Area
o Guidelines that address how the objectives will be achieved
-
The bylaw may also:
o Identify circumstances for which a permit is not required
o Include a schedule listing the protected properties in the area
o Identify features or characteristics that contribute to the heritage value
or heritage character of the area
District of Oak Bay - Statement of Significance
The Prospect Heritage Conservation Area
15
-
At least 10 days before a public hearing is held to discuss the
amendment, the District must notify all owners of properties listed on
the Heritage Conservation Area schedule
-
The District adopts the Heritage Conservation Area bylaw
- The District notifies the Land Title Office and the minister responsible
for the Heritage Conservation Act of the adoption of the Heritage
Conservation Area bylaw, as well as any additions or deletions that
may be made to the Heritage Conservation Area schedule
Using the Statement of Significance to support the creation of a
Heritage Conservation Area
The Statement of Significance that outlines the values and
characteristics of the proposed Heritage Conservation Area is
included in the OCP bylaw. The identified character defining elements
contribute to the description of the special features or characteristics
that justify the establishment of the Heritage Conservation Area, and
form the basis of the area guidelines.
Guidelines can be based on the Standards and Guidelines for the
Conservation of Historic Places in Canada, as well as being written
specifically for this HCA. Guidelines can provide direction in
preserving and protecting the architectural design and general
character of historic places, ensuring integrity, sustainability and
compatibility of all new construction with existing structures and
heritage values in the HCA.
District of Oak Bay - Statement of Significance
The Prospect Heritage Conservation Area
16
Sources
Australia ICOMOS. The Burra Charter: The Australia ICOMOS Charter
for Places of Cultural Significance, 2013.
Barnes, Fred C. ed. Only in Oak Bay: Oak Bay Municipality 1906-1981.
Corporation of the District of Oak Bay, 1981.
BC Archives MS-0772.The Fort Victoria and Other Vancouver Island
Treaties, 1850 -- 1854.
Biographical
Dictionary
of
Architects
in
Canada.
dictionaryofarchitectsincanada.org/
Cross, Rosemary James. The Life and Times of Victoria Architect
P. Leonard James. Victoria: Dear Brutus Publishing, 2005.
District of Oak Bay. Oak Bay Historical Walking Tour. No date.
District of Oak Bay. Official Community Plan. 2014.
District of Oak Bay Archives. https://www.oakbay.ca/our-community/
archives.
District of Oak Bay Heritage Register.
Murdoch, George. A History of the Municipality of Oak Bay. 1968. Oak
Bay Chronicles. oakbaychronicles.ca/
Parks Canada. Standards and Guidelines for the Conservation of
Historic Places in Canada. Second Edition. 2010.
Protect Oak Bay Heritage. http://protectoakbayheritage.ca/
Sparks, J. et al. Oak Bay, British Columbia in Photographs. Corporation
of the District of Oak Bay, 2006.
Stark, Stuart. Oak Bay's Heritage Buildings: More than just Bricks and
Boards. Victoria: Corporation of the District of Oak Bay. 1986. Second
printing: 1986; Third printing:1987; Revised and updated 1988
(Oak Bay); 1994 (Hallmark Society).
District of Oak Bay - Statement of Significance
The Prospect Heritage Conservation Area
17
Glossary of Terms
Adaptive Re-Use Conversion of a building into a use other than that for
which it was designed, such as changing a power plant or warehouse into
a gallery space or housing.
Archaeological Site A site that contains the physical remains of past
human activity, the physical evidence of how and where people lived in the
past, and that may be of regional, provincial, national or international
significance.
Artifact An object made by a human being, typically an item of cultural or
historical interest.
Character Defining Element The materials, forms, location, spatial
configurations, uses and cultural associations or meanings that contribute
to the heritage value of an historic place, which must be retained in order
to preserve its heritage value.
Conservation All actions, interventions, or processes that are aimed at
safeguarding the character defining elements of a cultural resource so as
to retain its heritage value and extend its physical life. This may involve
preservation, rehabilitation, restoration, or a combination of these and
other actions or processes.
Cultural Landscape Any geographical area that has been modified,
influenced, or given special cultural meaning by people.
-
Designed cultural landscapes were intentionally created by human
beings.
-
Evolved cultural landscapes developed in response to social,
economic, administrative, or religious forces interacting with the
natural environment. They fall into two subcategories:
o Relict landscapes in which an evolutionary process came to an
end. Its significant distinguishing features are, however, still visible in
material form.
o Continuing landscapes in which the evolutionary process is still in
progress. They exhibit significant material evidence of their
evolution over time.
-
Associative cultural landscapes are distinguished by the power of
their spiritual, artistic, or cultural associations, rather than their
surviving material evidence.
Demolition The systematic and deliberate destruction of a building
(or fixture, chattel, and or equipment) or portion thereof.
Designation Local government land use regulation intended to give long
term protection to heritage property. It is a form of legal protection and the
primary form of long term local government regulation that can prohibit
demolition.
District of Oak Bay - Statement of Significance
The Prospect Heritage Conservation Area
18
Fabric In conservation, fabric means all the physical material of a place
that is the product of human activity.
Habitat The area or type of site where an individual or wildlife species
naturally occurs or depends on directly or indirectly in order to carry out
its life processes or formerly occurred and has the potential to be
reintroduced.
Heritage Alteration Permit An authorization by local government that
allows certain kinds of changes to be made to protected heritage property.
Heritage Conservation Area A designated historic district or conservation
area, which denotes a neighbourhood unified by a similar use,
architectural style and / or historical development. A Heritage Alteration
Permit is required to make any changes in a Heritage Conservation Area.
Heritage Register A list of sites that have been recognized for their
heritage value by Council resolution.
Heritage Site Means, whether designated or not, land, including land
covered by water, that has heritage value to British Columbia, a community
or an aboriginal people.
Heritage Value The aesthetic, historic, scientific, cultural, social, or
spiritual importance or significance for past, present, or future generations.
The heritage value of an historic place is embodied in its character
defining materials, forms, location, spatial configurations, uses, and cultural
associations or meanings.
Historic Place A structure, building, group of buildings, district, landscape,
archaeological site or other place in Canada that has been formally
recognized for its heritage value.
Indigenous Native to a particular place.
Inspection A survey or review of the condition of an historic place and its
elements to determine if they are functioning properly; to identify signs of
weakness, deterioration or hazardous conditions; and to identify
necessary repairs. Inspections should be carried out on a regular basis
as part of a maintenance plan.
Intangible Heritage The practices, representations, expressions,
knowledge and skills, as well as associated tools, objects, artifacts and
cultural spaces that communities and groups recognize as part of their
history and heritage.
Integrity Material wholeness, completeness, and unimpaired condition of
heritage values or the completeness of an ecosystem in terms of its
indigenous species, functions, and processes.
Intervention Any action, other than demolition or destruction, that results
in a physical change to an element of a historic place.
Landscape An expanse of natural or human-made scenery, comprising
landforms, land cover, habitats, and natural and human-made features
that, taken together, form a composite.
District of Oak Bay - Statement of Significance
The Prospect Heritage Conservation Area
19
Maintenance Routine, cyclical, nondestructive actions necessary to slow
the deterioration of an historic place. It entails periodic inspection; routine,
cyclical, nondestructive cleaning; minor repair and refinishing operations;
replacement of damaged or deteriorated materials that are impractical to
save.
Native Wildlife species endemic (indigenous) or naturalized to a given
area.
Naturalized A non-native species that does not need human help to
reproduce and maintain itself over time in an area where it is not native.
Naturalized plants often form the matrix for a novel ecosystem.
Non-Native A species introduced with human help (intentionally or
accidentally) to a new place where it was not previously found.
Object A discrete item that has heritage value and can be collected or
conserved. See also Artifact.
Preservation The action or process of protecting, maintaining and / or
stabilizing the existing materials, form and integrity of an historic place or
of an individual component, while protecting its heritage value.
Rehabilitation The action or process of making possible a continuing or
compatible contemporary use of an historic place or of an individual
component, through repair, alterations, and / or additions, while protecting
its heritage value.
Restoration The action or process of accurately revealing, recovering or
representing the state of an historic place or of an individual component,
as it appeared at a particular period in its history, while protecting its
heritage value.
Scale The sense of proportion or apparent size of a building or building
element as created by the placement and size of the building in its setting.
Sense of Place The feeling associated with a place, based on a unique
identity and other memorable or intangible qualities.
Site Circulation Movement patterns of pedestrian and vehicular traffic.
Statement of Significance A statement that identifies the description,
heritage value, and character defining elements of an historic place.
A Statement of Significance is required in order for a historic place to be
listed on the BC Register of Historic Places.
Stewardship Linked to the concept of sustainability, stewardship is an
ethic that embodies responsible planning and management of cultural and
natural resources.
Streetscape The visual elements of a street, including the pavement
(dimensions, materials), sidewalks, adjoining buildings and open space
frontages, street furniture, lighting, trees and plantings that combine to form
the street's character.
District of Oak Bay - Statement of Significance
The Prospect Heritage Conservation Area
20
Sustainability A group of objectives (economic, social, and environmental
- the 'triple-bottom line') that must be coordinated and addressed to ensure
the long term viability of communities and the planet.
View or Viewscape What can be seen from an observation point to an
object(s), particularly a landscape or building.
Official Community Plan
Implementation Table
Implementing the OCP
Implementing the OCP depends on the collective decisions and actions of the District,
landowner/developers, residents, businesses, service providers, and federal and provincial
agencies that have jurisdiction over certain matters. The District's means of implementing the
Plan include OCP amendments, zoning, development permits, building permits, subdivision,
and fiscal programs to support land acquisitions, capital projects, District operations, and other
District activities. While the Local Government Act does not require the District to commit to or
authorize any specific project set out in the OCP, it does indicate that all decisions should be
consistent with the Plan.
The implementation table addresses actions that involve the preparation of new or revised
policies and tools (Table 1). This is presented as an initial list, as new implementation
strategies may evolve throughout the life of the OCP as new needs arise or priorities shift. The
action steps have cost implications and will need to be considered within the context of the
District's Long Term Financial Plan and annual budgeting. For some of the implementation
actions, there is a significant amount of work required before the action can be undertaken,
e.g., updating the Zoning Bylaw.
The identification of action items does not commit the District to undertaking these actions.
The actions are listed along with the following information:
Timeline
Short - within 1 to 3 years
Medium - within 4 to 6 years
Long - 7 years or more
Cost Required
$: 10-50K
$$: 50- 100k
$$$: 100-250K
The table also identifies the District staff that would be expected to be involved with or lead each
task. The first two items on the table, the Development Procedures Bylaw and updating the Zoning
Bylaw, are critical to implementing many of the policies in this OCP. The priorities and timing of
other actions will be determined by District staff and Council during their annual planning.
Table 1 Implementation Table
Action
Description
Cost
Department
Lead
Support
Comments
SHORT TERM
Review and update
Zoning Bylaw
Zoning Bylaw should be updated to reflect
recommended changes to implement the
OCP and to provide greater clarity and ease of
implementation for staƯ and applicants
$$$
CB&P
CS
Review and update
Tree Protection
Bylaw
Review the Tree Protection Bylaw to ensure
the bylaw is fit for purpose and responds to
changes proposed in the OCP and zoning
bylaw including reviewing canopy targets for
land use zones.
$
Parks
CB&P, CS
Review and update
Urban Forest
Strategy
Review and refresh this strategy from 2017 to
ensure the strategy aligns with the OCP goals.
$$
Parks
CB&P
Create a Standards
of Maintenance
Bylaw for Heritage
Designated
Properties
Prepare a Parks and
Recreation Master
Plan
Develop a parks master plan
$$
Parks
CB&P,
Finance
Prepare new
Subdivision and
Works and Services
Bylaw
New expanded works and services authorities
allow local governments to require a broader
range of works and services in a wider range
of circumstances.
$$
CB&P
Engineering &
Public Works,
Parks
Bill 16 provides
municipalities with the
authority to develop
Develop a Tenant
Protection Bylaw
A tenant protection bylaw is a municipal
regulation in British Columbia that provides
additional support for renters facing
displacement due to redevelopment,
complementing provincial laws like the
Residential Tenancy Act.
$$
CB&P
Bill 16 provides
municipalities with the
authority to develop
Village Area Plans
Develop village area plans with a focus on
urban design for Oak Bay Village and the
secondary villages of Estevan Village,
$$$
CB&P
Engineering,
Parks
Cadboro Bay and Foul Bay, Cadboro Bay Rd
and Esteven and Central and St Patrick St.
Infrastructure
Servicing
Masterplans
Water, sewer and storm masterplans need to
be updated to reflect the new land use
framework and population projections and to
inform review of DCC Bylaw
Engineering
Finance
ACC Bylaw Review
Undertake a high level review of projects to
ensure alignment with land use framework
and growth strategy
Parks
Finance,
CB&P
Bill 16 provides
municipalities with the
authority to develop
DCC Bylaw Review
Undertake a high level review of projects to
ensure alignment with land use framework
and growth strategy
Engineering
Finance,
CB&P
Develop an
AƯordable Housing
Strategy
comprehensive plan to address the
community's housing needs by ensuring
access to safe, secure, and aƯordable
housing for people across all income levels
and exploring targeted policies, programs and
initiatives and looking at municipal land
accelerate the delivery of new non-market
aƯordable rental and non-profit cooperative
housing projects
$$$
CB&P
Develop a
Transportation
Demand
Management Bylaw
A transportation demand management (TDM)
bylaw is a municipal regulation that requires
developers to incorporate strategies for
reducing the demand for single-occupancy
vehicle travel. As part of new developments,
especially in transit-oriented areas,
developers must implement TDM measures
to encourage the use of walking, cycling,
transit, and car-sharing.
Bill 44 provides
municipalities with the
authority to develop
Develop Community
Climate Action Plan
$$$
CB&P
Engineering
Develop Corporate
Climate Action Plan
$$
CB&P
Engineering,
Parks
Implementation
Monitoring
Framework
Complete the development of plan indicators
and a monitoring program that can be
reviewed on a regular basis.
$
CB&P
Engineering,
Parks,
Finance
Delegation of
Permits
Delegate additional development permits and
minor variances to staƯ
$
CB&P
CS
MEDIUM TERM
Develop an energy
and carbon reporting
bylaw for large
buildings
$$
CB&P
Housing Needs
Report
Complete the first regular Housing Needs
Report in alignment with the release of the
census data in 2027 to help guide a
comprehensive update to the OCP in 2030.
$
CB&P
LONG TERM
Comprehensive
update of the OCP
Comprehensive Review and update of the
OCP.
$$$
CB&P
Engineering,
Finance,
Parks,
Fire,CS,
In addition to the implementation items noted above, there are many communication and
partnership actions that are included in policies throughout the OCP. These are considered
part of the regular responsibilities of District staff. These items include communications to
the public and stakeholders about matters related to land use planning and management.
Partnership actions involve collaboration and coordination with other governments
and organizations on a wide range of initiatives related to climate change and
energy, environment, community and social well-being, arts and culture, education,
affordable and inclusive housing, community institutional uses, special events,
tourism, active transportation, transit, and emergency management. These actions
may occur on an ongoing or periodic basis.
OCP Monitoring and Review
Monitoring the OCP will be important in order to evaluate whether the vision, goals and
objectives are being achieved. This can help the District to adjust efforts during the term
of the OCP to better meet the community's vision. Monitoring systems often include
quantitative and qualitative indicators.
Qualitative indicators may be collected through expert opinions, surveys, and focus
groups. An annual workshop with OPAC could be an efficient and highly informative
way to gauge progress.
A monitoring system needs to have appropriate indicators that can be measured
without too much effort. Ideal indicators are those that are already collected by the
District or other jurisdictions, e.g., census, CEII.
An initial list of quantitative indicators is identified in Table 2. It is recommended that the
District review the indicators during the annual reporting cycle, recognizing that not all
data will be available annually. The District will likely need to revise the indicators over
time as the data available from other sources changes and based on the experience of
using these indicators.
Table 2 Indicators
Indicator
Data Source
Number and type of rezonings, development and building permits
issued
District - Planning
Number and type of housing units developed
District - Planning
Number of aƯordable and inclusive housing units in pipeline and
completed
District - Planning
Number of regulated secondary suites
District - Planning
Age profile of housing by decade
District - Planning
Number of registered/designated heritage properties
District - Planning
Length of trails (new and total)
District - GIS
Length of bike lanes (type, new and total)
District - GIS
Parkland per capita
District - Planning
Tree canopy (%)
District - Parks & Rec /
consultant
Transportation mode share
CRD
Number and type of businesses
District (Business Licenses)
Population - size, age distribution, employment, income, house
values
Census
Residential to commercial tax ratio
District
Per capita disposal of solid waste
District - Public Works, CRD
Greenhouse gas emissions quantity and source
CEEI