Ucluelet Sustainability Initiatives

2008 COMMUNITY EXCELLENCE AWARD SUBMISSION
Ucluelet Sustainability Initiatives
Category: Leadership & Innovation - Small Municipality
(Population under 5000)
Submitted By:
Felice Mazzoni, MCIP, Director of Planning
Jason Niles, Assistant Planner
District of Ucluelet
Union of British Columbia Municipalities
60- 10551 Shellbridge Way
Richmond, BC, Canada
V6X 2W9
Executive Summary
Although Ucluelet is a small community of 1900 people, we believe a number of our sustainability
policies have made a difference in terms protecting the environment. We believe Ucluelet is unique in
terms of its ability to implement sustainable policies on a broad scale which other municipalities can
emulate. Rather than submitting one singular project, the District of Ucluelet would like to submit the
following sustainable policy initiatives which have been initiated and implemented since 2006:
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Comprehensive Development
Alternative Development Standards
Smart Growth Initiatives/Affordable Housing
Density innovation
Riparian Area Regulations
LEED (Leadership in Energy and Environmental Design)
Climate Action Initiatives
Wave Power Initiative
We also would like to show that many sustainable initiatives can be created and implemented within finite
staff resources and a limited budget. (The District of Ucluelet had only one municipal planner for 8 of the
last 10 years. The planning department now has a total of 2 employees).
Through the use of the above initiatives, Ucluelet has been able to work towards building sustainable,
energy efficient neighbourhoods while maintaining the community’s unique character and sense of place.
Ucluelet has been able to “push the boundaries” of typical land use development by redefining and
creating new policies and legislation by “making the rules fit the goals.”
The eight policy initiatives outlined above correspond to the following UBCM General Criteria categories:
climate change initiatives; alternate energy; ecological footprint reduction, comprehensive community
plans; official community plans; eco-system management and restoration; green buildings and design,
sustainability planning and land use planning. All policies and projects have been implemented within the
past three years.
We believe the District of Ucluelet has shown that it is possible for small towns in British Columbia to be
leaders in sustainability community planning.
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1.0 Comprehensive Development Areas
Ucluelet has created (6) comprehensive development areas which include the following land uses: an ecoindustrial park, mixed commercial/residential development, single family and multi-family units, hotel
sites, a new golf course and staff and affordable housing. Comprehensive development policy allows
municipalities to create unique development sites with an interesting mix of land uses allowing for
flexibility for developers and new and innovative neighboring land uses. Ucluelet has used and
implemented CD zones since 2004 and continues to create new CD areas, specifically on large
undeveloped parcels of land. The Whiskey Landing (Figure 1) was completed in July on a reclaimed
brownfield site, and includes a variety of commercial and residential uses. Ucluelet’s eco-industrial park
comprehensive development area has created the flexibility of mixed residential and industrial land uses
(live/work studios) and has created efficiency in terms of one centralized area for shipping and processing
of industrial products and collection of waste materials. Other CD areas include mixtures of commercial,
residential, multifamily, vacation rental, and condominium land uses to produce a mix of unique services
creating efficient buildings and neighborhoods by reducing the separation of land uses and creating
pedestrian oriented developments.. By mixing land uses into comprehensive development areas, Ucluelet
has been able to create pedestrian accessible businesses, efficient infrastructure servicing, and a diversity
in employment possibilities.
2.0 Alternative Development Standards
The inclusion of Alternative Design Standards (ADS) into the OCP allows for development standards
which are less expensive than regular practices and more environmentally friendly. ADS policies in
Ucluelet’s current OCP were included to limit impermeable surfaces and allow for the natural ecosystem
to function as it prior to development. The District of Ucluelet incorporated ADS into the Official
Community Plan to help create environmentally sensitive, sustainable development by using alternatives
to standard approaches in creating subdivisions. Three residential subdivision developments in Ucluelet
have been successfully implemented and built using French Drain technology for drainage, narrower
roads, and the retention of natural vegetation in boulevards. Concrete sidewalks were replaced with public
paths, which are located away from the roadside and placed within the forest and vegetation. (Figure 2, 3
& 4) Higher density developments include storm water detention ponds as a functional element and an
aesthetic feature. The District of Ucluelet reduced long-term infrastructure costs and maintenance costs of
standard infrastructure through the use of ADS while creating and maintaining “rural character”.
Underground hydro services are a standard development requirement in order to reduce vegetation
clearing and to improve aesthetics. Using ADS has resulted in “greener” subdivisions where the natural
eco-system is relied upon to alleviate heavy storm flows in an environment, which receives over (12) feet
of rain per year. Through the use of ADS, Ucluelet has maintained its character while promoting
environmentally sensitive development practices.
3.0 Smart Growth
Smart Growth Policies were adopted into the OCP in preparation of new development and redevelopment
of existing properties. During the past 3 years, Ucluelet has seen more new construction that the previous
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20 years combined and currently has $900 million in development build-out taking place. It is important
for the community to maintain its “sense of place” and character while allowing for development to occur
on a manageable basis. The District of Ucluelet can influence and control the nature and pace of growth
within the municipality by following Smart Growth policies as outlined in the OCP:
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Undertaking development in a compact fashion;
Supporting mixed use development;
Promoting alternative development standards;
Protecting sensitive environmental areas;
Reducing (eliminating) detrimental economic, environmental, and social effects of
development;
6. Promoting multi-modal forms of transportation;
7. Integrating open space into daily living.
The District of Ucluelet included Smart Growth principles in the OCP with regards to new development
and redevelopment of existing properties. Smart Growth, which is a term that links development and
quality of life, promotes the use of new development growth to improve communities. As Smart Growth
is unique to every community, Ucluelet’s unique Smart Growth policies have been implemented to create
a variety of housing options, including both rental and strata forms of residential multifamily development,
single family development (both regular and small lot) and affordable housing (Figure 5). Stratification of
“common-wall” structures promotes affordability and allows for higher density residential in-fill (Figure
6). By promoting a variety of housing development, Ucluelet has maintained affordability and relieved
some of the burden of transient accommodation related to tourism, as mentioned in the Smart Growth
Affordable Housing Toolkit for municipalities. Ucluelet exercises both zoning density bonusing
techniques in addition to OCP policy to acquire affordable housing.
Ucluelet has seen a number of new developments that combine both commercial and residential uses,
especially within the downtown area. The unique character of new commercial developments is compact
in nature combined with a higher density, resulting in a smaller building footprint. As a Smart Growth
initiative within many of the new developments, as mentioned earlier, ADS has been implemented to
create ecologically friendly development and reduced related infrastructure costs to the municipality; there
has also been a greater retention of green space and an increase in pedestrian and bicycle routes through
new subdivisions. New subdivisions have 40-60% green space retention through Ucluelet’s unique and
locally created riparian area regulations. Other tools used to create greener subdivisions are “covenanted”
green setback requirements as well as higher parkland dedication and retention. The result is a greener,
aesthetically pleasing, high value subdivisions for developers, purchasers and the community.
4.0 Density Innovation
Density Bonusing promotes a higher density over a smaller building “footprint” allowing for increased
sustainable development through the reduction in infrastructure costs for the developer and maintenance
costs for the municipality.
Existing provincial legislation allows municipalities to use density bonusing as a planning tool. The
density chart and implementation is unique to Ucluelet and has drastically improved the social and
physical infrastructure of Ucluelet. Density Bonusing has provided the community with cash and
amenities it would not have received otherwise and provided for amenities that the community would not
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have been able to afford with our current tax base. To date, the community has received approximately
$12 million in combined cash, parkland, and amenities such as a new skateboard park, basketball court and
tot-park (Figure 7,8 and 9) as well as substantial contributions towards our new community centre and
multi-purpose sports field. Implementation of Ucluelet’s Density Bonusing system has also contributed to
average net green space retention of 40-60% of the total natural green space area of development
properties, as compared to the provincial minimum subdivision requirement of 5%. The high percentage
of green space retention has increased Ucluelet’s desirability as a tourism destination by preserving the
natural environment, which is one of Ucluelet’s greatest attractions. The density bonusing system has also
contributed toward the following:
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Private land being transferred or “covenanted” to the District of Ucluelet for municipal uses, and
Contributions of land and cash to our local child care society.
The establishment and funding of a social reserve fund.
5.0 Riparian Area Regulations
In 2005, Riparian Areas Regulation, enabled by the Fish Protection Act, came into effect. The west coast
of Vancouver Island was an “optional area” for local governments to create their own riparian area
regulations. In 2006, Ucluelet became the first municipality in the Province to create its own Riparian
Area Regulations which incorporated the requirement for “qualified environmental professionals” to
conduct specific stream assessments. The regulations defined riparian areas, defined required reports, and
included sediment management requirements, drainage details, viewscape plans and re-vegetation
requirements. This project was completed using the community/university research alliance between
Ucluelet and Vancouver Island University.
6.0 LEED Guidelines (Leadership in Energy and
Environmental Design)
In 2004, Ucluelet created and implemented its own unofficial LEED guidelines within its Official
Community Plan based on efficiency of water and energy, material selection and indoor environmental
quality. Although LEED principles have been around for a while, very few municipalities have created
“policy” around LEED “requirements” for new development.
Site Development OCP policies include Site Selection and Design, Water Efficiency, Energy Efficiency
and Construction materials.
On August 21st, 2007, the Council of the District of Ucluelet subsequently passed a unanimous resolution
to require that all new Hotels, Condominiums, Multi-family and Commercial developments (public and
private) meet or exceed the Official LEED “Silver Standard” as a minimum standard for sustainable
energy efficient construction in Ucluelet. Ucluelet is the first community in North America to institute a
LEED standard for all new construction.
The District of Ucluelet proceeded to draft the legislative changes required within the Local Government
Act and partner with the Ministry of Community Development to help develop the recently released
legislative amendments in Bill 10 and Bill 27.
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In 2007, the District of Ucluelet received its first application for an “official” LEED Gold Resort Hotel,
the first of its kind in North America (Figure 10 & 11). The development permit was approved in August
2007 and the construction will start in the fall of this year.
The proposed hotel will integrate sustainable energy design criteria including life cycle cost, social equity,
energy performance and independence in addition to aesthetic and planning considerations.
Environmental strategies will be employed to limit or eliminate erosion and sedimentation in order to
protect local ecosystems. Strategies will include temporary mulching, earth dykes, silt fencing, and
sediment traps and basins. Bio-swales, constructed wetlands and vegetation filter strips will also be
employed. Landscaping and civil design will address optimum storm water management, protection and
restoration of open space and the reduction of the “heat island effect” on non-roof areas. The design will
use light-coloured/high albedo materials and/or open grid pavement for a minimum of 30% of the sites
non-roof impervious surfaces including parking lots, walkways and plazas.
Ucluelet is also in the process of applying LEED guidelines to the construction a single family residential
subdivisions and homes by creating its own “home-grown” LEED-ND (Neighborhood design) concepts
for implementation. Ucluelet’s first “unofficial” pilot project for a LEED-ND subdivision was completed
in February, 2008.
7.0 Climate Action Initiatives
Local energy sustainability has surfaced as an important factor contributing to a community’s economic
resiliency and livability for its citizens and businesses. The District of Ucluelet has already identified the
importance of energy sustainability, by stepping forward to employ regulatory changes to land-use and
development standards, energy efficiency policies, and furthermore supporting Ucluelet Economic
Development Corporation’s investigation towards local renewable energy production (wave energy capacity
off of Amphitrite Point).
The District of Ucluelet is continually recognized and hopes to be further acknowledged for the consistent
effort in bringing new policy forward that helps build sustainable communities. A list below outlines eight (8)
of these components, that when put together form a strong foundation for reducing C02 emissions and
achieving specific energy targets:
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Signed Premier’s Climate Change Charter (33% reduction target in GhG emissions by 2020);
Participation in the Community Action on Energy & Emissions Program (CAEE);
Partnership with Zero Emission Electric Vehicles (ZEV) stakeholders;
Municipal Energy Audit;
2008 OCP Review: Community Energy Planning & Integrated Community Sustainability Plan;
Carbon Smart Workgroup: Ecotrust Canada and Pembina Institute (creating a base inventory of CO2
emission and identifying what steps are required to become a carbon neutral organization);
7. Green Checklist for Building Permits and Development Permits; and
8. Green Building Policy (all new Municipal buildings built to LEED Gold and all tourist commercial and
multi-family built to a minimum of LEED Silver)
Many of these initiatives are emerging practices that have minimal examples to refer to when planning and
implementing the required steps, therefore it has been crucial for the District of Ucluelet to enter into
several partnerships and collaborative knowledge sharing arrangements in order to successfully carryout
these innovative projects. Some of these partnerships include:
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Malaspina (Vancouver Island University) (energy audit)
Ecotrust Canada (carbon smart workgroup)
UBCM (legislative changes, Green Communities Small Community Working Group)
Community Energy Association (community energy planning best practices)
Provincial Government (Ministry of Transportation, Ministry of Community Services)
Overall, the dialogue surrounding climate change mitigation and adaptation requires buy-in from all
sectors. The District of Ucluelet continues to ensure that all programs and projects involve a dedicated
component for public involvement and education. Ucluelet achieves this by hosting events such as the
GreenBuild Seminar for local builders and contractors, as well as providing an online public input space
(www.wiki.ucluelet.ca), where anyone can join the discussion of how Ucluelet can work towards
sustainability and climate action measures. The result of involving community groups, private landowners
and residents of all ages, will only help new initiatives achieve momentum and long-term implementation.
8.0 Wave Power
The District of Ucluelet is currently working on partnering with a Global Energy Wave Power to provide
the community of Ucluelet with an “off-the-grid” power solution (Figure 11). The end goal is to be in the
position to power the community from wave power and sell access power back to BC hydro in a profitmaking venture. A test site has been identified in close proximity to Ucluelet’s current Light House and
an exploratory permit has been acquired for the new technology (Global Energy - CETO) to be evaluated.
Ucluelet is hoping to become the first wave powered community in North America.
Conclusion
The community of Ucluelet has strived to become a model for other small communities to follow in terms
of protection of the natural environment, implementation of environmentally sensitive practices, leadership
in community sustainability, and planning for the future. Ucluelet has implemented policies to create a
synergy between the natural landscape and development, while maintaining the community’s sense of
place. We believe Ucluelet has demonstrated, through sound planning practices, how a community can
remain sustainable and environmentally aware, while preserving its values and priorities.
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(Figure 1) Whiskey Dock Comprehensive Development Area
(Figure 2) Alternative Design Standards – St. Jacques Boulevard
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(Figure 3) French Drain - Rainforest
(Figure 4) Narrow road + path – Marine Drive
(Figure 5) Ucluelet’s first affordable housing units - strata
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(Figure 6) Strata Small-Lot Housing in Ucluelet
(Figure 7) Skateboard Park
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(Figure 8)
(Figure 9) Multipurpose Sport Field
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(Figure 10) LEED Gold Resort Hotel - Ucluelet
(Figure 11) Wave Energy Initiative – Global Energy/CETO/District of Ucluelet
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