CITY OF KELOWNA SOUTHWEST OKANAGAN MISSION ...

CITY OF KELOWNA

SOUTHWEST OKANAGAN MISSION

SECTOR PLAN

The original draft South West Okanagan Mission Sector Plan was prepared in conjunction with Kasian Kennedy Architects Ltd., Ward Consulting Group and UMA Engineering Ltd.

The finalized sector Plan has been amended by the City of Kelowna and may no longer represent the opinion of Kasian Kennedy Architects Ltd., Ward Consulting Group and UMA

Engineering Ltd. in certain circumstances.

Since the endorsement of the Southwest Okanagan Mission Sector Plan on July 1 1 , 1994, ptease note that the following Bylaws affect the Plan, partJcularfy Chapters 3,4,5, 6 and 7:

For more up-to-date information on specific items identified in this pian, please consult the following:

Bylaw 7834 -

Bylaw 7835 -

Bylaw 7728

Mission Village, (Neighbourhood I) Concept Development Plan (Public Hearing on January 30, 1996. Currently awaiting final reading by Municipal Council)

CD-2 Zone (Public Hearing on January 30, 1996. Currently awaiting final reading by Municipal Council)

Arterial Roads Development Cost Charge Levy Sector -a- - South Mission (Approved)

City of Kelowna Transportation ptan (Endorsed by Council on November 27, 1995)

Copies of the above are available for review at the Planning and Development Services Department on the second floor of City Hall.

TABLE OF CONTENTS

, .0 INTRODUCTION

1 . 1 Purpose of Plan 1.2 Explanation/Rational of Boundaries 1 .3 Hierarchy of City Plans and Policies 1.4 Plan Process & Public Input

2.0 PLANNING CONTEXT AND DEVELOPMENT FACTORS

2.1 Location and Setting 2.2 History of Area and Development

2.3 Physical Character

2.3.1 Topography 2.3.2 Soils 2.3.3 Landscape Character and Environmentally Sensitive Areas 2.3.4 Wildlife 2;3.5 Climate 2.3.6 Agricultural Land Reserve

2.4 Land Use

2.4.1 Zoning and Land Use Contracts 2.4.2 Existing Land Use

2.5 Existing Demographic Profile

2.6 Existing Services

2.6.1 Roads 2.6.2 Municipal Services 2.6.3 Utilities 2.6.4 Community Services

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3.0 EXISTING POLICY AND RELATED OBJECTIVES

3.1 Introduction

3.2 Land Use Policy Considerations

3.2.1 Strategic Plan 3.2.2 Official Community Plan 3.2.3 Agriculture &. the ALR

3.2.4 Natural Areas &. Environmental Features

3.2.4.1 3.2.4.2 3.2.4.3 3.2.4.4

Kelowna's Natural Features Summary Report South Slopes Community Forest Strategic Plan Environmental By-laws &. Policies Linear Parks Policy

3.3 Servicing Policy Considerations

3.3.1 Water 3.3.2 Sanitary Sewer 3.3.3 Storm Drainage 3.3.4 Utilities

3.4 Roads &. Transportation Policy Considerations

3.4.1 Arterial Roads 3.4.2 Collector and Local Roads 3.4.3 Transit 3.4.4 Pedestrians and Cyclists

4.0 FUTURE LAND USE STRATEGIES

4.1 Introduction

4.2 Future Land Use - Overview

4.2.1 Ultimate Growth Scenario 4.2.2 20 Year Growth Scenario 4.2.3 Neighbourhood Nodes 4.2.4 Density 4.2.5 Land Use 4.2.6 Servicing 4.2.7 Roads 4.2.8 Transit 4.2.9 Transportation Demand Management

4.3 Residential Strategies

4.3.1 Issues

4.3.2 Objectives and Policies

4.3.2.1 4.3.2.2 4.3.2.3 4.3.2.4 4.3.2.5

Form & Character Intill & Transition Areas Urban/Rural Interface Affordable Housing Housing Mix

4.4 Commercial StrategiesNillage Centre

4.4.1 Issues 4.4.2 Objectives and Policies

4.4.2.i 4.4.2.2 4.4.2.3 4.4.2.4

Location Size & Viability Form & Character Phasing

4.5 Parks and Open Space


4.6 Schools & Institutional Uses


4.7 Agricultural Land Reserve


4.8 Natural Areas

4.8.1 Issues 4.8.2 Objectives & Policies

5.0 NEIGHBOURHOODS, SERVICING INFRASTRUCTURE AND PHASING

5.1 Introduction 5.2 Phasing of Neighbourhoods and Servicing Infrastructure 5.3 Areas of Infill

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5.4 Neighbourhood 111

5.4.1 Land Use 5.4.2 Overview of Roads 5.4.3 Phasing of Road Improvements within the Sector 5.4.4 Phasing of Road Improvements Outside Sector 5.4.5 Overview of Water System 5.4.6 Phasing of Water System: Neighbourhood 1

j 5.4.7 Sanitary Sewer 5.4.8 Drainage

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5.5 Neighbourhood 112

5.5.1 Land Use 5.5.2 Overview of Roads

l 5.5.3 Phasing of Road Improvements within the Sector 5.5.4 Phasing of Road Improvements Outside Sector 5.5.5 Overview of Water System

! 5.5.6 Phasing of Water System: Neighbourhood 2 5.5.7 Sanitary Sewer 5.5.8 Drainage

5.6 Neighbourhood #3

5.6.1 Land Use 5.6.2 Overview of Roads 5.6.3 Phasing of Road Improvements within the Sector 5.6.4 Phasing of Road Improvements Outside Sector 5.6.5 Overview of Water System 5.6.6 Phasing of Water System: Neighbourhood 2 5.6.7 Sanitary Sewer 5.6.8 Drainage

5.7 Neighbourhood #4

5.7.1 Land Use 5.7.2 Overview of Roads 5.7.3 Phasing of Road Improvements 5.7.4 Water System 5.7.5 Sanitary Sewer 5.7.6 Drainage

5.8 Utilities

6.0 IMPLEMENTATION

6.1 Revision to Official Community Plan 6.2 Revision to Agricultural Land Reserve 6.3 Revision to Road Network 6.4 Requirement for Concept Development Plans 6.5 Zoning

7.0 FINANCIAL IMPLICATIONS

7.1 General Philosophy/Methods of Cost Recovery 7.2 Arterial Roads Servicing Plan and Financing Strategy

7.2.1 Background Information 7.2.2 Arteria1 Roads Cost Sharing Methodology 7.2.3 Aterial Road Network Considerations 7.2.4 Project Thresholds

7.3 Water Servicing Plan and Financing Strategy

7.3.1 Background Information 7.3.2 Cost Sharing Methodology 7.3.3 Water System Network Considerations 7.3.4 System Thresholds

8.0 APPENDIX" A" - GUIDELINES FOR DEVELOPMENT OF HILLSIDE AND CLUSTER HOUSING

9.0 BIBLIOGRAPHY

FIGURES

Map1 Lo·cation Map

Map 2 Slope Classification

Map 3 Topography and Natural Features

Map 4 Trails and Parks

Map 5 Current Zoning

Map 6 Current Land Use and Agricultural Land Reserve (ALR)

Map 7 Existing Roads

Map 8 Current Water Systems

Map 9 30%+ Slopes

Map 10 Future Land Use

Map 11 Neighbourhood Node LOcations

Map 12 Road Improvements

I Map 13 Water System

I Map 14 Sanitary Sewer

l Map 15 Stormwater Drainage

, .0 INTRODUCTION

, . , Purpose of Plan

The Southwest Okanagan Mission Sector Plan has been prepared at the request of the City of Kelowna in response to development pressures, concerns by the existing local community and lack of an overall land use and servicing strategy for the Study Area. In particular, increasing traffic and related congestion within the Study Area and north along Lakeshore Road has the local community requesting solutions prior to the approval of further new development in, and adjacent to, their neighborhood.

In addition, existing policy permitted some development under a mechanism designated a "land use contract", a form of spot zoning no longer permitted within the British Columbia Municipal Act. These land use contracts provide for the servicing of approximately 400 additional (new) lots with little opportunity for the City to require the deveioper to provide full funding for the necessary roads and services required to accommodate this new growth.

The area has been under pressure for development for many years. While the City is in the process of updating many of its existing policies, rapid growth throughout the Region and City has necessitated a re-evaluation of certain areas prior to the finalization of this review. Of most significance is the review and update of the City of Kelowna Official Community Plan, a process which ended in adoption of the Plan in June of 1995.

Further development within the area is limited as there is no or little capacity in the existing water systems. This has been a major factor for limiting growth during the last five years. In addition, growth potential has been limited due to the lack of sanitary sewer. Lot sizes for dwellings on septic systems are generally much larger than for dwellings serviced with community sanitary sewer.

The purpose of the Sector Plan is, therefore, the resolution of future land uses and related road and servicing issues for the Study Area. The document has been prepared within the Terms of Reference established by the Planning Department and adopted by City Council. The City of Kelowna authorized the preparation of the Southwest Okanagan Mission Sector Plan on November 2, 1992, when the following resolution was adopted:

THAT the consulting consortium coordinated by Ms. Jane Fleming of Kasian Kennedy Architecture, Interior Design and Planning Inc., be authorized to prepare a Southwest Okanagan Mission Sector Plan for Council's consideration, with such plan to be developed within the City's approved Terms of Reference for Sector Plan preparation;

AND THA T the Sector Plan preparation costs be borne by First National Properties Ltd. as prospective developers of certain lands within the area;

AND THA T the Southwest Okanagan Mission Sector Plan boundaries be defined as the Bellevue Creek corridor to the north and east, Lake Okanagan to the west and the City boundary to the south;

SOUTH WEST MISSION SECTOR PLAN

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AND FURTHER THAT the Southwest Okanagan Mission Sector Plan preparation occur within a time frame which wi'll allow for full participation and contribution by the two Okanagan Residents Associations, as outlined in the Planning & Development Services Department report of October 30th, 1992 which provides for a projected Plan completion date of April 30th, 1993.

Subsequent to the adoption of this resolution, the property was sold. Council reconsidered the matter and passed an amending resolution as follows:

THA T Council authorize the Planning and Development Services Department to complete the Southwest Mission Sector Plan using a consultant,·

AND THA T Council continue to retain the firm of Kasian Kennedy, subject to staff preparing a detailed work schedule and fee schedule;

AND FURTHER THA T funding for the consultant be obtained from First Canyon Development Co.

The content of a Sector Plan includes but is not limited to the following:

• an inventory of existing land uses, zoning, transportation, infrastructure etc.;

• consideration of the natural environment in the area, including soils, agriculture, slope, natural features etc. and guidelines for their protection;

• a statement of both general and specific development objectives and policies for the area;

• the general location of the major transportation network, including vehicular circulation, public transit, cycling and pedestrian routes;

• the type and location of various land uses as well as the preparation of development and design guidelines. .

• sequence of development (phasing);

• the identification and general location of the proposed major utility infrastructure components;

• identification of the need and general location of major institutional uses;

• the pattern of land ownership or existing subdivisions, and;

• a statistical summary of the plan areas.


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1.2 Study Area Boundaries

The area included within the Study Area boundaries extends from Bellevue Creek on the north and east, Lake Okanagan on the west and the City boundary . on the south. Map 1 portrays the area included within the analysis. The total area is approximately 5,000 acres.

1.3 Hierarchy of Plans and Policies

The mandate for sector plans is included within The Municipal Act, Part 29, Division (1). This section provides for the preparation of one or more Community Plans which are adopted By-Law. A Community Plan is a statement of objectives and policies and may include maps and plans.

A Sector Plan provides for the intermediate link between and Official Community Plan and the more detailed planning completed for neighborhood and referred to as Neighborhood Structure or Concept Plans. Sector Plans provide the framework for the future development of an area and the link to the broad policies and objectives as defined in the Official Community Plan. The Plan also provides general guidelines directed towards ensuring the orderly and efficient development of an area in terms of providing essential services and facilities, land uses, transportation facilities, population densities and the phasing of that growth. Full consideration of the costs and benefits of various actions upon the social and economic life and the physical environment of present and future residents must be given.


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Authority to prepare a Sector Plan must be given by Council and can be required for an area of land which can accommodate a group of neighborhoods considered to be an integrated planning unit, where an area is large enough to provide a mixture of land uses, or where special concerns (such as areas requiring environmental protection) warrant.

1 .4 Plan Process and Public Input

As indicated in the Council resolution outlined above, the Sector Plan was, in the first instance, prepared at the expense of a landowner within the Study Area: A preliminary draft of the Plan was prepared and submitted in March 1993. However, events during the following summer saw the property change hands and the process of completing the Sector Plan has been directed by the City Planning Department.

The plan preparation process included three major components, namely:

a) Preparation of technical analysis; b) Review by City staff and other agencies; and, c) A public involvement process.

The results of the technical analysis will be discussed fully later in this report, while the comments and direction provided by City staff have been incorporated into the study's findings.

The public involvement process was managed, in part, by a Steering Committee and included a series of public meetings. A questionnaire was also developed as part of the process and input sought directly from . the community.

The Steering Committee was established at the direction of City Council to assist in the management and preparation of the Sector Plan. The Steering Committee consists of two City staff from the Planning and Development Department, six residents representing the Okanagan Mission Residents Association and the Southwest Mission Residents Association (3 from each) and two developer representatives. Meetings with the Steering Committee were held during the planning process to review the Sector Plan and prepare and summarize the Public Meetings.

Prior to the completion of the "March Draft" public meetings and open houses were held on three separate occasions at the Mission Hall. The first meeting dealt with the existing situation and identified the issues and concerns to be addressed in the Sector Plan Report. A questionnaire was made available to the community in order to provide the Committee with an identification of issues and concerns. The second session presented the results of the survey to the community and included two development scenarios.

Meetings were also held with landowners and developers in the area as well as with representatives of the various departments within the City of Kelowna, the Provincial Government and the Regional District of Central Okanagan.


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Questionnaire Results

The questionnaire was prepared by the consultant with input from the Steering Committee. Approximately 700 questionnaires were distributed throughout the community. Of these, 230 were completed and returned.

A wide range of questions were asked including what people thought about the Agricultural Land Reserve to the types of housing and size of lots people would like to see in the Study Area.

General Information and Comments

The majority of the respondents live in single family homes, have been residents in the area for at least two years and are between 40 to 65 years of age. Only half the respondents had school age children.

The majority of the people enjoyed living in the Mission because of the quiet, rural setting and the availability of natural areas. The disadvantages of living in the area included the condition of the roads and access to the area, increasing congestion, the pressure of new development, and lack of services (sewers, water and adequate drainage).

• Agricultural Land Reserve

There was strong support for the preservation of the Agricultural Land Reserve (95%) but people were willing to consider development on ALR land that was not agriculturally viable due to slope, elevation, poor soils, lack of water etc.

• Environmental Features

There was support for the preservation of creeks and lakes and other environmentally sensitive areas. When questioned, people favored neighborhood and linear parks over additional regional and district parks.

• Heritage Features

There are very few heritage sites in the Study Area and few comments regarding the preservation of heritage resources (75% did not answer the question). The few that have been identified include Saint Andrews Anglican Church, the Indian Middens and pictograph, several log cabins and irrigation flumes, all located outside the Study Area boundaries.

• Housing Types

In general, there was strong support for single family homes (65%)' on large lots of 10,000 square feet or more (62%). However there was also strong support for the concept of multi-family housing (66%) and affordable housing (68%) but no consensus on where either should be located. Townhouse development was the form of multi -family housing most often supported (43%).


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Support for "rural" development was significant at 59% and respondents generally favoured 1 acre lots over larger ones.

• Commercial

There was support for the introduction of some local commercial at 62%, with convenience store and personal service uses the largest choices (42 and 31 % respectively).

• Roads

Most of the respondents felt that the roads were sufficient to handle existing traffic but improvements would be required prior to the commencement of any significant new development. Of all issues identified, there was the greatest degree of concern around this issue.

• Services

When questioned on the level of urban services required, there was a very high degree of support for both sanitary and storm sewers (87 and 85% respectively). A total of 56% identified curb & gutter and 46% indicated sidewalks were necessary.

Consultation with Affected Agencies

Various Government agencies with interests in the plan area were also consulted. The following are a list of those agencies contacted.

• Provincial Agricultural Land Commission - Meetings were held with staff of the Provincial Agricultural Land Commission to review the impact of the Plan's policies on the Agricultural Land Reserve.

• Ministry of Transportation and Highways - The Ministry was consulted on the future Grid Road System as proposed in the OCP.

• School District No. 23 (SD#23) - Representatives of the SD#23 were consulted in the course of the planning process to establish the number and locations for future schools in the plan area.

• Regional District of Central Okanagan - A representative of the Regional District of Central Okanagan was consulted to make sure that the Sector Plan did not conflict with plans the Region had along the southern boundary of the Sector Plan.

• Ministry of Foresta - Fire protection staff were consulted on current forest management and fire protection guidelines applicable to Crown Land Forests located immediately south of the Study Area.


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