By Carrie Saxifrage

We are lucky to have impressive work toward affordable housing by our Regional Director Mark Vonesch, Cortes Island Housing Society Executive Director Sadhu Johnston, Cortes Foundation Executive Director Manda Aufochs Gillespie, Cortes Community Economic Development Association Economic Development Officer Kate Maddigan, donors who make all this possible and everyone else helping the community as a whole. Also, the 2002 bylaws have worked really well for us, especially the foresight regarding forest zones. Thanks to those who engaged in that process. I hope, if you have thoughts about the proposed revision, you will let the SRD know.

Information Needed

With regard to the residential upzone proposal, we need two more pieces of information to make an informed decision: 1) the upcoming CIHS aquifer study will hopefully answer the impact of new dwellings on existing water users during summer droughts, a natural limitation with very strong force; and 2) the SRD planners should make known the increase in the actual number of possible dwellings with this proposed upzone based on the number and size of parcels in each zone. We can’t assess potential impacts without this number.

Additional questions: 1) Where is the map showing whether the areas of the current zones get reconfigured as a result of this bylaw revision? And 2) Can certain areas be prezoned to encourage purchase by community members who want to be co-owners?

Cut to the chase

Based on the information I have so far, I support greater density then proposed in the R-1 zone and no density increase in RU-1. Here are my reasons, no answers but a desire to deepen the discussion.

So you can skip around

This article gives more detail about each residential zone covered in my Tideline article. Then it discusses tiny homes, more about whether an upzone is likely to impact affordability in our particular market, land sharing, why zoning is one of our most important citizen rights, limits on building size, affordability ideas other than an upzone (including ideas from the Cortes Housing Forum) and a dialogue with Microsoft Co-Pilot about whether upzoning will impact affordability.

Village Life

This sentence from FOCI’s 2023 review of the OCP resonates for me:

“Rural-character” therefore ought properly to be understood as a village aesthetic surrounded by agricultural activities and a thriving wilderness.

It harkens back to a past when we couldn’t drive everywhere we wanted to. The future seems likely to hold this as well, either because we address climate change effectively and ICE (internal combustion) vehicles are no longer needed as the default transportation or because we don’t, and systems built for a stable climate begin to fail. Either way, the village seems the most practical going forward.

The village is currently represented by R-1, our highest density zone. Here are the proposed 2024 changes relative to the 2002 bylaw:

Chart summary of R-1 changes:

Not looking at building types (ADU, etc), the upzone increases density only on R-1 lots that are three or more hectares in size. These can have 5 dwellings while the 2002 max was 4. CIHS would like to see the lot size halved for all lot sizes in this zone. This would create a denser village.

The R-1 parcels are limited by the Island Health regulations for sewerage. Parcels less than one hectare require approved community water supply/sewage system or an approved system engineered for the property in question. That’s why, according to the SRD’s FAQs on the proposal, the minimum lot size of one hectare/.8 ha for R-1 can’t change.

It seems like greater density could be allowed if the parcel can accommodate an approved system. More dwellings per lot may make the sewerage requirements less of a barrier to affordability through cost sharing of approved public sewerage systems or approved composting toilets.

While effective sewerage is essential to public health and ecosystem protection, we are in a housing crisis. Island Health’s “one size fits all communities” approach to sewerage makes it prohibitively expensive, pushing people toward less sanitary options. The SRD – and we – should ask Island Health for safe options that are better suited to our community’s situation.

CIHS has also suggested increased density in the Public Assembly and Community Services zones. These zones are near services and could have public sewerage. This makes sense as a way to densify areas near services.

Also, the Residential Multiple One (RM-1) zone (unchanged from 2002, six attached dwelling units on any lot size) could be used to increase village density. Other high density zones include:

Community Housing and services zone (35),
Residential Multiple One (6)
Community Land Stewardship One (15)

According to an experienced resident, strata developments that uses a common septic field can be designed to serve approximately 12 homes on one large septic field. Anything larger gets complicated and falls under the Waste Management Act. This may be best done through a specific rezoning. It requires a large area of suitable perc material, and that would preclude a lot of properties on Cortes.

The ‘community sewer’ will also require ‘community water.’ That is another area in which we need more practical solutions than the regulations enacted after the Walkerton tragedy of 2000 which are too onerous for our community’s situation.

The less dense residential zones

Rural 1 (RU-1)

This is the lowest density zone intended to preserve the rural nature of Cortes Island and part of the “thriving wilderness” described above. In the 2002 rezone, the low density was intended to preserve wildlife habitat. With a minimum lot size of 2 ha (about 5 acres), the owner might use 1 or 2 acres to grow food and leave the rest for non-human island residents. In 2002, the maximum number of dwellings for RU-1 was 4 (of specified type). In the 2024 proposal, it is 7 (unspecified type, so possibly larger).

This RU-1 proposed upzone would have the greatest increase in allowed dwellings, where they will increase driving trips and spread human impacts. This is contrary to the village concept.

If Cortes Island wants to keep its wild character and minimize driving, density should be directed toward R-1, the zone nearest existing services. If an owner wants to subdivide in the RU-1 zone, the community should be able to ask for amenities in exchange. These can include affordable rental units and/or conservation covenants. Upzoning the density in RU-1 gives away the ability to seek these amenities.

To preserve the rural character of Cortes Island, there should be no increase in the number of dwellings allowed in RU-1.

Rural Residential – 1 (RR-1)

The RR-1 zone doesn’t seem to get much use and I don’t discuss it here. I found one area on the north side of Hague Lake and another above Cortes Bay.

Tiny House Village

An area zoned for a tiny house village near services would help increase density in the village areas. According to the SRD, living in RVs or tiny homes on wheels will never be legal. From the FAQs:

RVs and Tiny Homes on wheels are limited to short-term, tourist accommodation only as they are not built to meet the safety requirements necessary to be considered a dwelling under the BC Building Code. Though Cortes Island does not have a building service that requires building inspections or the issuance of permits, all buildings on Cortes Island are still subject to the BC Building Code. As a local government, we cannot permit a land use in contravention of provincial legislation, including the BC Building Code.

Wheels make homes easier to buy and move. Clustered, they could be connected to an approved sewerage system. Island Health and the SRD need to be more flexible to craft solutions that are feasible for Cortes and respond to our realities.

Tiny homes without wheels remain a legal option so one lot in each village could be prezoned for the Community Services or Stewardship Zones to allow tiny homes to cluster and have approved, shared sewerage.

What kind of “Affordable Housing” does the proposed upzoning aim to provide?

The proposed upzone revision seems influenced by the belief that increasing density rights will increase affordability for island residents. (Affordability is typically defined by 30% of one’s monthly income, either in mortgage payments or rent.) These charts from the most recent Cortes “Vital Signs” report reflect the problem:

I looked for data supporting the idea that increasing density rights will increase affordability for island residents. There’s a lot of research in urban settings that show that, when combined with other measures toward affordability (like housing subsidies), increased density will usually help make housing more affordable in a few years to a decade.

I couldn’t find research on places that have both an underserved market for affordable year-round housing and a more international vacation property market. On Cortes, the fear is that upzoning won’t solve the residents’ affordability problem, but it could get us a lot more second homeowners with more impact on our roads, water, fire risk, wild lands and emergency services.

When I didn’t find answers the usual way, I asked Microsoft Co-pilot AI about the impact of upzoning on affordability in a land market like Cortes Island. The answer confirmed the lack of research on this. It suggested that upzoning could increase the market value of properties, lead to speculative investment, and increase strain on infrastructure. It can also change the character of a community. (See below for the full Microsoft Co-Pilot AI answers).

Given the uncertainty, it makes sense to upzone incrementally so we can see how our particular market responds over the next decade. But it is hard to tell how “incremental” the proposed revisions are in the absence of numbers of increased dwelling rights. We need the SRD planning staff to provide information for multiple scenarios so we can envision what is proposed. (Several people suggest Monopoly houses on a map to make it visual – why not?)

How many parcels exist in each zone and what size are they?
Using this figure, how many dwellings for each zone would be added by the 2024 proposed upzone?

Depending on this answer, we might choose to go more slowly, see who is able to buy in and how much affordable and secure rental housing results. Then we will still have room – and maybe better tools – to continue our support for secure year-round housing in the next bylaw revision. And we will retain our right to influence density decisions when a landowner applies for a rezone

Why This Matters

Voting and zoning are our strongest citizen powers, such as they are. Zoning involves communities in decisions with important long-term impacts. This upzone is a generational opportunity for the community to guide its own development.

The upside of a blanket upzone is simplicity and no rezone costs. The downside is that a blanket upzone takes away the community’s power to require a landowner to provide amenities in exchange for the right to build more dwellings.

When an owner or developer wants to build more dwellings on their property than the zoning currently allows, they have to apply for a rezone. At the public rezone hearing, the community can make known its approval or disapproval. It can also make known the amenities it would be willing to trade in exchange for the owner’s right to build more dwellings as this may increase the value of the land and have community impacts. Those amenities include affordable housing measures and conservation covenants. Our elected Regional Director and the Strathcona Regional District board make the final decision.

If the community is going to give up our ability to influence what happens on a specific piece of land, we need assurance that the upzone will create secure and affordable year round housing. Right now, we don’t have that.

Will an upzone increase land sharing?

One rationale for the upzone is that landowners will be able and willing to have someone else build a house on their land. The landowner has help with costs, someone has their forever home.

But there’s no evidence, either that I could find on the web or in the local research, that suggests an upzone will help this to happen. If data suggested that that current dwelling restrictions are a barrier for people who want to do this, that would be important information for this decision. Even so, land partnerships may be a great way for some residents to pool resources and get landed but they aren’t simple and probably aren’t for everyone.

Dwelling size

The upzone revision also allows for larger buildings. A 640 sq ft cottage in 2002 becomes an 1,200 sq ft Accessory Dwelling Unit in 2024. There has been talk of an upper size limit for any dwelling, such as 3,000 sq ft.

Tiny homes are less expensive to build although (although with the same impacts in terms of sewerage, the decimation of bird populations by cats and water use). If tiny homes represent the community dream, a generally applied size limit could discourage purchasers who wouldn’t accept a size limitation. This could put downward pressure on prices by making Cortes land less attractive on the recreational/speculative market.

What Creates Affordability?

Even in urban areas, upzones were only helpful when there were other affordability measures in place. CIHA has done incredible work in this direction, with Rainbow Ridge and its updates on BC resources. The short term rental tax of 3% goes toward affordable housing for islanders.

A lot of great ideas came up in the Housing Forum last December including: 3% empty homes tax; summer worker housing; home share registry; and loans for home upgrades to increase rental units.

Implementation of these ideas seem like the more certain way to cultivate long term affordability than a blanket upzone in a real estate market with both recreational and speculative value. If we can make systemic changes that create non-market housing, then people with island incomes will be able to live here in the long term. Cortes won’t be hollowed out by homes that stand empty. Island districts to the south are doing this.

Rental:

The Capital Regional District has developed a comprehensive housing strategy for the Southern Gulf Islands which involves collaboration between federal, provincial and local governments, as well as non-profits.
Rural Housing Program Pilot: the CRD is creating prototypes of housing solutions suited to rural contexts such providing financial assistance for homeowners to build secondary suites and ADUs in exchange for affordable rents.
The Islands Trust has developed a tool kit to support housing related and land use planning projects.

Purchase: Some Cortes land has increased by 105% over the last ten years. Inflation has increased more generally by 25%. If wages follow inflation, buying property is getting further out of reach over time, perhaps because Cortes land is part of a global market of recreational and speculative properties. The biggest purchasing power seems to come from off-island.

Property ownership generates personal wealth. An owner who bought land at an island-affordable price and sells years later at market value could make a big a profit if land values continue to increase. But that land might not be affordable for other islanders.

Non-market housing restricts resale prices so that land might be affordable for year-round residents. Also known as “deed restricted housing”, the resale of affordable lots can be tied to 1) a fixed percentage (often 1-2% of the value compounded yearly); 2) a change index, like the increase in an area’s median income or a consumer price index); or 3) an appraisal, such as 25% percent of the increased appraisal of the land and house. These videos explain this idea.
Other ideas include community land trusts and limited equity cooperatives.
We could preserve our current lower density with the understanding that non-market rentals are a community amenity which we will exchange for increased density rights.
Prezoning for increased density that provides non-market housing could tilt zoning away from recreational properties and toward year long residents.
In the case of subdivision, a certain number of affordable lots could be required. This is probably just a one time opportunity for residents to enter the property market if they are free to resell at market value.
Some islanders have found success sharing land as Tenants in Common. Others have created a corporate entity to hold title in a bare trust for a number of co-owner.

Some of these measures are beyond the purview of the current zoning proposal. But some of them are amenities the community can ask for in the event of a rezone application.

In sum, if we want villages, we should ask the SRD for a greater upzone in R-1, as suggested by CIHS. If we want to preserve our rural character and a thriving wilderness, we should keep the RU-1 zone at its current density. It doesn’t make sense to upzone and give away our right to require amenities in exchange for increased density in the RU-1 zone, which is intended to preserve the wild and rural character of Cortes Island. And, of course, we should continue to protect the F-1 and F-2 zones as hotly as we have done in the past

Microsoft Co-Pilot on Upzoning

Upzoning, which involves changing zoning laws to allow for higher-density development, can have mixed impacts on affordability in mixed rural residential and recreational land markets. Here are some key points:

Increased Housing Supply: Upzoning can lead to an increase in housing supply by allowing more compact housing types like townhouses, multiplexes, and multi-family units. This can help meet demand and potentially reduce housing costs2.
Market Demand and Local Context: The impact of upzoning on affordability can vary depending on market demand and local context. In areas with high demand, upzoning might lead to increased property values and higher costs2.
Complementary Policies: For upzoning to effectively improve affordability, it often needs to be paired with other policies, such as reducing parking minimums or providing affordable housing subsidies.
Mixed Outcomes: Research indicates that upzoning can have mixed success in terms of reducing costs and improving social integration. The outcomes depend on factors like housing types, timing, and the specific local market conditions1.
Potential for Gentrification: While upzoning can increase housing supply, it can also lead to gentrification, which may not necessarily benefit lower-income households.

In summary, upzoning can potentially improve affordability by increasing housing supply, but its success depends on various factors and often requires complementary policies to achieve the desired outcomes.

(It relies on this article and this article. In the second article, Table 3 on page 11 is helpful).

Can you find a specific example of upzoning in a rural recreational area?

I couldn’t find a specific example of upzoning in a rural vacation area, but upzoning typically occurs in urban or suburban areas to increase housing density and affordability. However, if you’re interested in how upzoning might impact rural vacation areas, it could potentially lead to more development and higher property values, which might affect the affordability and character of those areas.

More about rural recreational areas:

Upzoning in rural areas can have several potential impacts:

Increased Development: Allowing higher-density development can lead to more housing and commercial projects, which can change the rural character of the area.
Property Values: Upzoning can increase property values as developers and investors see the potential for higher returns, which might make it harder for long-term residents to afford their homes.
Infrastructure Strain: More development can put a strain on local infrastructure, such as roads, water supply, and sewage systems, which might not be equipped to handle increased density.
Environmental Impact: Increased development can lead to habitat destruction, loss of open space, and other environmental concerns, which can be particularly significant in rural areas.
Community Character: The rural charm and lifestyle might be altered, potentially leading to conflicts between long-term residents and newcomers.

Would you like to explore any specific aspect of these impacts further?

Property values:

Upzoning can have a significant impact on property values in rural areas. Here are some key points:

Increased Market Value: Allowing higher-density development can increase the market value of properties, as developers and investors see the potential for higher returns.
Speculative Investment: Upzoning can lead to speculative investment, where investors buy properties with the expectation that their value will increase due to the new development potential.
Long-term Effects: While property values might increase immediately after upzoning, the long-term effects can vary. In some cases, increased supply might eventually stabilize or even reduce prices over time.
Local Variations: The impact of upzoning on property values can vary significantly depending on local market conditions, demand, and the specific characteristics of the area.

From Strong Towns article (recommends going slowly with broad but shallow upzones)

Infrastructure Strain:

Roads and Traffic: Increased development can lead to more traffic, putting a strain on rural roads that may not be designed to handle high volumes of vehicles. This can lead to congestion and higher maintenance costs.
Water and Sewage Systems: More residents mean higher demand for water and sewage services, which can overwhelm existing systems. Upgrading these systems can be costly and time-consuming.
Public Services: Services such as schools, healthcare, and emergency services may need to expand to accommodate a larger population, which can be challenging for rural communities with limited resources.

Community Character:

Lifestyle Changes: The rural lifestyle is often valued for its tranquility and slower pace. Increased density and development can disrupt this, leading to a faster-paced, more urbanized environment.
Social Dynamics: An influx of new residents can change the social dynamics of a community. Long-term residents might feel their way of life is being eroded, which can lead to tensions between old and new community members.
Local Businesses: While increased population can benefit local businesses through higher demand, it can also attract larger, corporate competitors, which might threaten smaller, local enterprises.

The impacts of upzoning in rural areas are multifaceted and can vary greatly depending on the specific context. Balancing development with the preservation of rural character and ensuring that infrastructure can support growth are crucial considerations.

what is affordable housing

Affordable housing refers to housing units that are affordable to those with a median household income or below. It is typically defined by the percentage of a household’s income that is spent on housing costs. Generally, if a household spends 30% or less of its income on housing, it is considered affordable.

Key Characteristics of Affordable Housing:

Income-Targeted: Affordable housing is often aimed at individuals and families with low to moderate incomes, including those who earn too much to qualify for subsidized housing but too little to afford market-rate housing.
Government and Non-Profit Involvement: It is frequently supported by government programs or non-profit organizations that provide funding, subsidies, or tax incentives to make housing more affordable.
Variety of Housing Types: Affordable housing can include a range of housing types, such as single-family homes, apartments, townhouses, and condominiums.
Long-Term Affordability: Many affordable housing programs aim to maintain affordability over the long term through mechanisms such as rent controls, deed restrictions, or shared equity models.

Examples of Affordable Housing Programs:

Subsidized Housing: Government programs provide rental assistance or subsidies to help lower-income households afford their rent.
Inclusionary Zoning: Policies require developers to include a certain percentage of affordable units in new housing developments.
Community Land Trusts: Non-profits own the land and sell or lease the housing on it at affordable rates, maintaining affordability over time.

Affordable housing is crucial for ensuring that all individuals and families have access to safe, stable, and adequate housing, which is essential for overall well-being and economic stability.

Would you like to know more about specific affordable housing programs or policies?

is it legal to place means testing on affordable housing real estate

Yes, it is legal to use means testing for affordable housing. Means testing involves assessing an individual’s or family’s financial situation to determine eligibility for certain housing programs or subsidies. This approach ensures that limited resources are directed to those who need them most.

Governments and organizations often use means testing to allocate affordable housing units, rental assistance, and other housing-related benefits. The criteria for means testing can vary depending on the specific program and jurisdiction.

Would you like more information on how means testing is implemented in affordable housing programs?

can an area be zoned specifically for affordable housing?

Yes, areas can be zoned specifically for affordable housing. This is typically done through inclusionary zoning policies, special zoning districts, or overlay zones designed to encourage or require affordable housing development. Here are some common approaches:

Inclusionary Zoning: Requires developers to include a certain percentage of affordable units in new residential developments. This ensures that affordable housing is integrated into all neighborhoods.
Affordable Housing Overlay Zones: These are special zoning districts that provide incentives, such as increased density or reduced parking requirements, for developing affordable housing. They can be layered over existing zoning to encourage affordable housing in targeted areas.
Special Zoning Districts: Local governments can designate specific areas as affordable housing districts, where the primary purpose is to develop housing that is affordable to lower-income households. This might include relaxed zoning regulations, financial incentives, or expedited permitting processes.
Density Bonuses: Allow developers to build more units than would normally be permitted by the zoning code in exchange for including affordable housing units in their developments.

By using these zoning strategies, communities can promote the development of affordable housing and ensure that it is available in various neighborhoods.

Is there a specific zoning strategy or example you would like to know more about?

special zoning districts for affordability Gulf Islands BC

The Gulf Islands in British Columbia have implemented several strategies to address affordable housing, but specific zoning districts dedicated solely to affordability are less common. Instead, the focus has been on creating secondary suites, cottages, and other housing options to increase affordability2.

For example, the Southern Gulf Islands Housing Strategy developed by the Capital Regional District (CRD) aims to address housing affordability through various initiatives, including secondary suites and cottages. The strategy emphasizes the need for a mix of housing options to meet the needs of different income levels while preserving the unique character of the islands1.

what is the time frame for systems collapse due to climate change

The time frame for potential systems collapse due to climate change is a topic of ongoing research and debate among scientists. Some studies suggest that catastrophic climate “doom loops” could start within the next 15 years. These tipping points, such as the melting of the Arctic permafrost, the collapse of the Greenland ice sheet, and the transformation of the Amazon rainforest into savanna, could occur as soon as 2038.

However, it’s important to note that these predictions are based on models and assumptions, and the exact timing and extent of such collapses are still uncertain. The urgency of addressing climate change is clear, and taking action now can help mitigate these risks.

Would you like to know more about specific tipping points or how we can work to prevent them?

Cortes Currents

Residential Upzone Proposal for Cortes Island