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ELECTORAL AREA B CAWSTON

OFFICIAL COMMUNITY PLAN


BACKGROUND REPORT
APRIL 2011

Table of Contents
1.0

INTRODUCTION ............................................................................................................................ 5

1.1

What is an Official Community Plan? ...................................................................................... 5

1.2

Why create a Official Community Plan? ................................................................................. 5

1.3

Required Official Community Plan Content............................................................................ 6

1.4

RDOS Community Climate Action Plan .................................................................................. 6

2.0

PLANNING CONTEXT .................................................................................................................. 9

2.1

Local Context .............................................................................................................................. 9

2.2

Regional Context ...................................................................................................................... 10

3.0

COMMUNITY PROFILE .............................................................................................................. 13

3.1

History ........................................................................................................................................ 13

3.2

Population Trends .................................................................................................................... 14

4.0

CURRENT LAND USE ................................................................................................................ 18

4.1

Agriculture ................................................................................................................................. 20

4.2

Residential ................................................................................................................................. 20

4.3

Commercial ............................................................................................................................... 21

4.4

Industrial .................................................................................................................................... 21

4.5

Civic, Institutional and Recreational ...................................................................................... 21

4.6

Transportation and Infrastructure .......................................................................................... 21

4.7

Vacant and Crown Land .......................................................................................................... 22

5.0

HOUSING ...................................................................................................................................... 23

5.1

Housing Type & Tenure .......................................................................................................... 23

5.2

Housing Affordability ................................................................................................................ 23

6.0

ECONOMY .................................................................................................................................... 25

7.0

TRANSPORTATION .................................................................................................................... 27

7.1

Roads ......................................................................................................................................... 27

7.2

Public Transit ............................................................................................................................ 27

8.0

INFRASTRUCTURE & SERVICING ......................................................................................... 28

8.1

Water .......................................................................................................................................... 28

8.2

Liquid Waste ............................................................................................................................. 28

8.3

Solid Waste ............................................................................................................................... 29

8.4

Stormwater ................................................................................................................................ 29

Electoral Area B (Cawston) Official Community Plan Background Report (April 2011)
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8.5

Utilities ........................................................................................................................................ 29

9.0

PARKS, TRAILS & OPEN SPACES ......................................................................................... 30

10.0

ENVIRONMENTALLY SENSITIVE AREAS ............................................................................. 33

11.0

HAZARD LANDS .......................................................................................................................... 35

11.1

Floodplain .................................................................................................................................. 35

11.2

Wildifre ....................................................................................................................................... 36

12.0

DEVELOPMENT PERMIT AREAS............................................................................................ 37

Electoral Area B (Cawston) Official Community Plan Background Report (April 2011)
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1.0

INTRODUCTION

An Official Community Plan (OCP) is being developed for Electoral Area B Cawston.
This report has been prepared to assist the OCP process by describing the planning
context for the OCP and by providing baseline information about human and natural
conditions and trends affecting Area B as well as the Similkameen Valley and Regional
District area.
1.1

What is an Official Community Plan?

An OCP represents a communitys vision for the future. It is a legal policy framework,
adopted as a by law by a r egional board or municipal council, for guiding decisions
affecting the use and development of land. An OCP is important because it provides
community members, developers and local politicians with certainty about where and
what kind of development will be allowed in a community. It also establishes the basis
for other local government regulations such as zoning, subdivision and building bylaws.
Land use decisions can often be difficult and contentious. An OCP that provides clear
policies based on what a community wants, along with subordinate legislation (such as
a zoning bylaw) that is consistent with the OCP, allows for better decisions and for the
community to grow and evolve as its citizens have envisioned.
1.2

Why create a Official Community Plan?

An OCP is intended to be a living document that is amended over time as a


community changes and as the world changes. Because of this, OCPs are typically
reviewed every five to ten years.
Like other BC communities, Area B faces a host of issues such as rising energy costs;
greenhouse gas emissions, climate change; preserving agricultural lands and
increasing local food security; maintaining affordable housing options; development
protecting natural habitat and species biodiversity; reducing automobile reliance; and
meeting the needs of an ag ing population while maintaining a v iable economy and
enhancing quality of life.
These issues are not exclusive but interrelated and while they may seem
insurmountable, a well informed and carefully crafted OCP is an important step toward
addressing these issues at the local level. Furthermore, as a signatory to the BC
Climate Action Charter, the RDOS has committed to the establishment of targets,
policies and actions for reducing greenhouse gases, in its official community plans. This
along with other legislative requirements and powers for local government further
substantiate the need to create a new OCP.

Electoral Area B (Cawston) Official Community Plan Background Report (April 2011)
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1.3

Required Official Community Plan Content

In accordance with the requirements of the Local Government Act, an OCP must
include statements and map designations for the area covered by the Plan respecting
the following:
.1 the approximate location, amount, type and density of residential development
required to meet anticipated housing needs over a period of at least 5 years;
.2 the approximate location, amount and type of present and proposed commercial,
industrial, institutional, agricultural, recreational and public utility land uses;
.3 the approximate location and area of sand and gravel deposits that are suitable for
future sand and gravel extraction;
.4 restrictions on the use of land that is subject to hazardous conditions or that is
environmentally sensitive to development;
.5 the approximate location and phasing of any major road, sewer and water
systems;
.6 the approximate location and type of present and proposed public facilities,
including schools, parks and waste treatment and disposal sites;
.7 housing policies respecting affordable housing, rental housing and special needs
housing; and
.8 targets for the reduction of greenhouse gas emissions in the area covered by the
plan, and policies and actions of the local government proposed with respect to
achieving those targets.
An OCP may also include:

Policies relating to social needs, social well-being and social development;

A regional context statement;

Policies respecting the maintenance and enhancement of farming;

Policies relating to the preservation, protection, restoration and enhancement of


the natural

environment, its ecosystems and biological diversity;

Development Permit Area designations and associated guidelines.

1.4

RDOS Community Climate Action Plan

Beginning in 2007, the Province moved forward with a number of legislated and policy
actions designed to encourage energy efficiency and reduce emissions of greenhouse

Electoral Area B (Cawston) Official Community Plan Background Report (April 2011)
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gases (GHGs). This included a legislated target to reduce total GHG emissions in BC
by 33% from 2007 levels by 2020, and 80% by 2050.
Of specific relevance to The Regional District is the Local Government (Green
Communities) Statutes Amendment Act (Bill 27, 2008). Bill 27 amended the Local
Government Act to read:

LGA 877 (3) - An official community plan must include targets for the reduction of
greenhouse gas emissions in the area covered by the plan, and policies and actions
of the local government proposed with respect to achieving those targets (by May
31, 2010).

In partnership with Keremeos, Oliver, Osoyoos, Penticton, Princeton, and Summerland,


the Regional District developed regionally coordinated Community Climate Action Plans
(CCAP) for the region, member municipalities and rural areas. The CCAPs provide
strategic guidance on how to reduce community energy use and greenhouse gas
(GHG) emissions.
Each community, including Electoral Area B has its own CCAP which includes 8
regional strategies and several local actions to address how to reduce each
communitys energy use and GHG emissions. The regional strategies provide the
framework for achieving reductions in energy use and GHGs. The local actions define
how the strategies will be implemented in each community. Each community has their
own list of local actions that reflects the communitys needs and resources.
Estimated community energy consumption, and associated GHG emissions in Electoral
Area B are shown in the Table below. Total GHG emissions in 2007 are estimated at
5,418 tonnes of CO2e, excluding emissions from large industrial buildings. F or a
population of 1,095 residents, this is about 4.9 tonnes per person. The approximate
retail value of the energy spent in the community for 2007 was $2.2 million. This is
equivalent to spending approximately $2,000 per person annually to pay for energy
services.
Sector

Energy
Consumption
(GJ)

GHG Emissions (tonnes


CO2 e)

Buildings
Residential
Commercial/ Small-Medium Industrial

67,676

972

6,705

98

46,056

3,197

8,119

562

1 2 8 ,5 5 6

590
5 ,4 1 8

117

4.9

Transportation
Personal
Commercial
Solid W aste
Tota l

Per capita values

Electoral Area B (Cawston) Official Community Plan Background Report (April 2011)
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Energy consumption and GHG emissions in Electoral Area B (2007)


Note: Includes commercial, small and medium industrial buildings. Large industrial data are not reported in the CEEI.

Buildings consume the majority of energy; however, when looking at GHG emissions,
the contribution from buildings is a much smaller proportion than vehicles. This is
because the electricity consumed in BC is mostly hydro-electric and has low carbon
emissions for each unit of energy consumed, while vehicles use fossil fuels.
Based on a projected annual population growth of 0.5%, overall GHG emissions are
forecasted to decrease by approximately 20% by 2030. This includes efficiency
improvements expected as a result of senior government policy. The Table and Figure
presented below provide detail on the forecasted energy use and GHG emission for
each sector.
Energy
Consumption
(GJ)

Sector

GHG Emissions
(tonnes CO2 e)

Buildings
Residential
Commercial/ Small-Medium Industrial

60,721

872

6,844

100

30,992

2,151

7,909

547

1 0 6 ,4 6 6

662
4 ,3 3 1

Transportation
Personal
Commercial
Solid W aste
Tota l

Per capita values

3.5

Estimated Business as Usual (BAU) energy and GHG forecast, 2030

6,000
5,000
4,000
3,000
2,000
1,000
0
2006

2010

2015

Commercial + Other Vehicles


Commercial
Waste

2020

Personal Vehicles
Residential

Forecasted Business as Usual (BAU) GHG emissions

Electoral Area B (Cawston) Official Community Plan Background Report (April 2011)
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2030

2.0

PLANNING CONTEXT

2.1

Local Context

Electoral Area B encompasses approximately 239 s quare kilometres and is bounded


by the International Boundary to the south, incorporates parts of the Snowy and South
Okanagan Grasslands Protected Areas, and is bisected by the Similkameen River and
the Crowsnest Highway (Highway 3). The Plan area lies within the traditional territory of
the Okanagan Nation Alliance and i ncludes the Blind Creek Reserve No. 6, Lower
Similkameen Reserve No. 2 and the Chopaka Reserves No. 7 & 8. The Village of
Keremeos is situated approximately 4 kilometres to the north-west.

Aerial View of Cawston and the South Similkameen River Valley (Source: Google Earth)

Approximately 66% of the Electoral Area B land base is comprised of Crown land, the
majority of which is outside of the valley bottoms and in the form of Protected Areas.
First Nation Reserves represent a further 14.7% of the land base, with the remaining
18.7% privately held. Of these privately held parcels, approximately 59% are situated
within the Agricultural Land Reserve (ALR). Commercial uses are generally found on
Main Street, Cawston, with few instances of highway development. A few industrially
assessed parcels are dispersed throughout the Electoral Area, and can generally be
found adjacent Highway 3. Residential development has generally occurred around
Main Street and along Newton Road to the north.

Electoral Area B (Cawston) Official Community Plan Background Report (April 2011)
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2.2

Regional Context

The Similkameen Valley is centered on t he Similkameen River that runs west to east
between the Coast and Cascade mountain ranges. The western part of the Valley has a
colder, moister climate than the dry, south eastern area (which represents the northern
extremity of the Sonoran Desert). The Valley is approximately 7,239 km2 in area with a
rich biodiversity, and, in 2006, was home to slightly less than 10,000 people.

The Similkameen Basin (Source: Fisheries and Oceans Canada, et. al., 2005)

Between 2001 and 2006 the Valleys population increased 5.9% (i.e. 1.2% / annum),
which represents a s ignificant increase and the first time in decades that population
Electoral Area B (Cawston) Official Community Plan Background Report (April 2011)
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growth in the Similkameen surpassed that of the South Okanagan (3.4%) as well as the
provincial average (5.3%). Most of this increase came from in-migration with results
from the 2006 Census revealing that the total number of new in-migrants to the Valley
was 2,620, making up 27% of the total Valley population.
Electoral Area H (rural Princeton area) had the largest increase of in-migrants (37.6%),
followed by the Village of Keremeos at 36.2%, Electoral Area G (rural Keremeos /
Hedley area) at 31%, and the Town of Princeton at 7.4%. Electoral Area B (Cawston)
decreased its in-migration by 53.3%. Consequently, population grew in all these places
except for Electoral Area B. Total overall growth was highest in Electoral Area G
(12.5%), followed by Electoral Area H at 12.1%. The Village of Keremeos grew more
modestly at 7.7% while the Town of Princeton grew at 2.6%.
The Similkameens population growth fits a pat tern that has been unfolding across
western portions of North America since the 1970s whereby amenity-led migration
the movement of people to places rich in natural and/or cultural amenities is leading
to faster growth in rural areas than in metropolitan centres.
While some high amenity, rural communities experience these benefits, there have also
been serious negative effects. Socio-economic ones include lack of affordable housing,
increasing cost of living, widening income disparity between earlier inhabitants and
amenity migrants and social and physical dislocation of people of modest means. The
most common biophysical outcomes are low-density sprawl, land fragmentation with
conversion to residential development, increasing urban-wildland interface and
depletion of water resources along with more general stress on ecological systems.
Awareness of the growing change amenity migration was bringing to the Valley lead the
Similkameen Valley Planning Society (SVPS) a not-for-profit organization composed
of representatives from the seven governing bodies in the Valley to initiate a project
in 2007 to study and strategically respond to amenity migration.
Phase 1 of the project developed essential information on in-migration, especially about
those coming to enjoy the Valleys rich natural environment and rural ambiance, while
Phase 2 formulated a strategy for the sustainability of the Valley the Strategy for a
Sustainable Similkameen Valley (2011-2020). The Strategy for a Sustainable
Similkameen Valley is not a l and use plan, but rather a c ooperative strategy for
achieving a more sustainable future:
Valley residents maintain and rehabilitate the Similkameens key attributes
(beauty, high quality natural environment and resources and rural, small
town lifestyle), while building on existing sustainability values and practices,
and adding greater knowledge and innovation. This demands an increase in
residents participation in local affairs to strengthen and solidify the Valley
socially, culturally and economically, relying heavily on volunteers working
Electoral Area B (Cawston) Official Community Plan Background Report (April 2011)
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through informal and formal organizations. In addition, the Valley attracts


and keeps especially environmentally responsible and economically active
in-migrants. This includes special attention to developing a range in housing
type and cost. The power of a region is harnessed, wherein the Valleys
communities take advantage of the social, political and economic strengths
that come from their collaboration.
The Local Government Act is seen to provide flexibility to giving effect to the
Sustainable Similkameen Strategy through an OCP as Section 875 (Purposes of official
community plans) establishes that ... an official community plan should work towards
the purposes and goals referred to in section 849. Under Section 849, this includes,
but is not limited to the following:
(a) avoiding urban sprawl and ensuring that development takes place where adequate
facilities exist or can be provided in a timely, economic and efficient manner;
(b) settlement patterns that minimize the use of automobiles and encourage walking,
bicycling and the efficient use of public transit;
(c) the efficient movement of goods and people while making effective use of
transportation and utility corridors;
(d) protecting environmentally sensitive areas;
(e) maintaining the integrity of a secure and productive resource base, including the
agricultural land reserve;
(f) economic development that supports the unique character of communities;
(g) reducing and preventing air, land and water pollution;
(h) adequate, affordable and appropriate housing;
(i) adequate inventories of suitable land and resources for future settlement;
(j) protecting the quality and quantity of ground water and surface water;
(k) settlement patterns that minimize the risks associated with natural hazards;
(l) preserving, creating and linking urban and rural open space including parks and
recreation areas;
(m) planning for energy supply and promoting efficient use, conservation and
alternative forms of energy;
(n) good stewardship of land, sites and structures with cultural heritage value.

Electoral Area B (Cawston) Official Community Plan Background Report (April 2011)
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3.0

COMMUNITY PROFILE

3.1

History

Prior to the first recorded visit by a no n-native in the Similkameen Valley in 1813, the
area had been inhabited by the Sylix people for many millennia. F ollowing the
establishment of the International Boundary in 1846, the Hudsons Bay Company
moved their trading post from Washington State to a s ite at present day Cawston (on
the Dewdney Trail that connected the Fraser Valley with the Kootenay region).
The first fruit trees were introduced to the Similkameen in 1880 when a local rancher,
Frank Richter, packed them in from New Westminster over the Hope Trail. I n 1884,
Richter would sell over 2,000 hectares known as the R Ranch to Ella Lowe and
Richard Cawston.
In 1886 the Federal government established native land reserves in the Similkameen,
some of which conformed to existing ranching parcels occupied by First Nations
ranchers at the time.
In 1907, the Vancouver, Victoria and Eastern Railway (soon to be acquired by the Great
Northern Railway) was extended from Oroville to Princeton through Cawston. This
spurred a speculative boom that contributed to the emergence of the modern townsite
of Keremeos, as well as the formation, in 1909, of the Similkameen Fruit Land Company
which bought the R Ranch from Lowe and Cawston in order to subdivide
approximately 1,200 ha into 5 acre parcels.
The R Ranch was formally surveyed in 1913, and renamed to Cawston in 1916. The
outbreak of War would delay development of the orchard lands, with the Similkameen
Fruit Land Company eventually declaring bankruptcy in 1926.
Until the 1950s, the growth of the community was generally limited to those areas that
could be r eached by a gravity system of furrow irrigation. U nder the Prairie Farm
Rehabilitation Act, however, water from the Similkameen River was brought to the
benches and the land was opened for applicants under the Veterans Land Act (VLA).
This resulted in the creation of a number of new farms, most of which were planted to
tree fruits.
In 1966, the community of Cawston was organised as an unincorporated area
comprised within Electoral Area B of the Regional District of Okanagan-Similkameen.
Of the eight electoral areas found within the RDOS, Electoral Area B, at 238.75 km2, is
the smallest and represents approximately 2.3% of the total region, with the resident
population of 1,082 representing only approximately 1.36% of the regional total.

Electoral Area B (Cawston) Official Community Plan Background Report (April 2011)
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3.2

Population Trends

In 1993, the Regional District compiled a population profile of all Electoral Areas in order
to obtain some basic information about the current populations, past population trends,
population projections, and age structures.
At that time, Electoral Area B was identified as the slowest growing unincorporated
area, in percentage terms, in the Regional District for the period between 1966 and
1993. The average annual growth rate for this period was approximately 1.6% per year,
representing an overall increase of 55% (i.e. from 735 to 1,139 persons). Electoral Area
B had grown rapidly during the 1960s and early 1970s, before experiencing a s light
decline in the late 1970s that was soon replaced with a moderate 0.8% per year growth
rate throughout the 1980s.
Looking forward, the Report adopted a Medium projected growth rate for Electoral
Area B of 1.5% per year over the next twenty years as this figure was only slightly less
than the one experienced since 1966. U nder this Medium growth scenario, the
population of the area was to be approximately 1,428 persons by 2008.
With the release of the 2006 Census, the population of Electoral Area B was measured
at only 1,082 persons or slightly less than 25% of the growth that had been
anticipated by the Regional District in 1993. That the 1993 Report missed the mark by
so much may be attributable to a significantly slower growth rate of 0.43% per year
throughout the 1990s and an ac tual decline of -0.72% per year in population between
2001 and 2006. Putting aside the high growth period of the late 1960s and early 1970s,
the thirty year trend from 1976 to 2006 has been an av erage annual growth rate of
0.16% per year.

Past Population Growth by Electoral Area


7000
6000

Area 'A'

5000

Area 'B'
Area 'C'

4000

Area 'D'

3000

Area 'E'

2000

Area 'F'

1000

Area 'G'

Area 'H'
1966

1971

1976

1981

1986

1991

1996

2001

2006

Electoral Area B (Cawston) Official Community Plan Background Report (April 2011)
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Demographically, it was also expected that the median age in Area B will continue to
increase moderately over the next 20 y ears, and w hile Cawston has the second
youngest population of any Electoral Area within the RDOS, like many other areas of
the province it is growing older. T he median age of 35 i n 1991, which had only
increased 13% since 1981, reached 47.8 in 2006 an immoderate increase of 36.6%.
In 1981, the percentage of persons over the age of 55 in the Electoral Area represented
approximately 24.5% of the population, whereas, by 2006, this figure had increased to
35.7%. Conversely, in 1981, the percentage of persons under the age of 20 was 29.5%
of the population, whereas, by 2006, this figure had decreased to 21.8%.

Age Group Characteristics


Total Population
by Age Group

1981

1986

1991

1996

2001

2006

% change
1981 - 2006

< 15

220

250

265

N/A

190

180

-18.2%

15 24

160

105

125

N/A

135

90

-43.8%

25 54

390

400

435

N/A

465

430

10.3%

55 69

170

150

140

N/A

210*

255

50.0%

70 and over

80

85

110

N/A

120*

130

62.5%

Total Population:

1,020

990

1,075

N/A

1,120

1,085

6.4%

* Estimates based upon available Census information

Population Age Distribution (2006)


45%
40%
35%
30%
25%

Area 'B'

20%

RDOS

15%

BC

10%
5%
0%
0 - 14

15 - 24

25 - 44

45- 64

65 - 84

85+

Electoral Area B (Cawston) Official Community Plan Background Report (April 2011)
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Although the population of Electoral Area B declined by 3.6% between 2001 and 2006,
the proportion of people aged between 45 and 64 increased by 15.3% in this same
period, while people aged between 25 and 44 declined by 14.3%.

Household Distribution in Electoral Area 'B'


200
150

Other
One Person

100

Couple (no children)


Couple (with children)

50
0
2001

2006

This trend can also be seen in the composition of households in Electoral Area B, as
the average household size continues to shrink (i.e. 2.3 persons versus provincial
average of 2.5 persons), while the majority of households are comprised of either one
person, or couples with no children (69.3% versus provincial average of 57.6%).
BC Stats has estimated that the RDOS will grow by approximately 0.58% per annum
from 2006 to 2026, which will result in an additional 10,000 persons residing in the area,
whereas a de mographic study of the Regional District undertaken by the Real Estate
Foundation estimated the increase would be 1.0% per annum between 2001 to 2031
(resulting in an additional 24,000 persons). In January 2011, BC Stats released subProvincial population estimates which estimated that the Unincorporated Areas of the
Regional District had declined 1.0% (or by approximately 259 persons).
While projecting population can be an i nexact science, as evidenced by the
aforementioned forecasts prepared by the Regional District in 1993, there do exist a
number of techniques that can be used to reasonably determine future growth.
One such indicator is historical growth which, as noted above, was approximately
0.16% per annum in Electoral Area B for the years 1976 to 2006. Another indicator are
those future growth trends modeled by the provincial government (and as mentioned
above).
When the historic population data and trends are combined with future growth
projections for the region, this would suggest that population growth projection could be
negative or a very modest 0.10% to 0.25% per year over the next 20 years.

Electoral Area B (Cawston) Official Community Plan Background Report (April 2011)
Page 16 of 38

Projected Population Growth


1350
1300

Population

1250
0.10%

1200

0.25%
0.50%

1150

1.00%

1100
1050
2026

2024

2022

2020

2018

2016

2014

2012

2010

2008

2006

2006

2011

2016

2021

2026

0.10% Growth

1,082

1,087

1,093

1,098

1,104

0.25% Growth

1,082

1,096

1,109

1,123

1,137

0.50% Growth

1,082

1,109

1,137

1,166

1,195

1.00% Growth

1,082

1,137

1,195

1,256

1,320

Based on this information, the permanent population of Electoral Area B is projected to


grow to between 1,104 and 1, 320 persons by 2026. This would represent population
growth of 22 to 238 residents by 2026.
Given the 2006 Census showed the average number of persons per household in the
Electoral Area was 2.3, approximately 10 to 104 new dwelling units will be required in
Cawston to accommodate growth. This represents an average annual demand for 1 to
5 dwelling units per year.
Population Growth

Calculation Information
0.10%

0.25%

0.50%

1.00%

Population Growth

22

55

113

238

Persons Per Household

2.3

2.3

2.3

2.3

New Dwellings Required

10

24

49

104

Electoral Area B (Cawston) Official Community Plan Background Report (April 2011)
Page 17 of 38

4.0

CURRENT LAND USE

Figure 4.1 shows the current land uses for Electoral Area 'B' based on BC Assessment
Authority data. As indicated on the map and in Figure 2.1, the Electoral Area has a very
limited range of land uses, with the two predominant uses being either residential or
agricultural.
The dominant assessed land use (by hectares) is agriculture, which accounts for over
80% of the assessed land base. The next largest land use is residential (14.37%), while
the remainder of the assessed Plan area comprises a very small amount of other uses.

Land Use by Assessment (2011)*


0%

1%

2% 3%
14%

Civic, Institutional and


Recreation
Industrial
Agriculture
Residential
Commercial
Transportation and
Infrastructure
80%

* Data generally excludes Crown land as well as First Nation Reserve land.

Electoral Area B (Cawston) Official Community Plan Background Report (April 2011)
Page 18 of 38

FIGURE 4.1 ELECTORAL AREA B LAND USE ASSESSMENT


(SOURCE: BC ASSESSMENT)

Electoral Area B (Cawston) Official Community Plan Background Report (April 2011)
Page 19 of 38

4.1

Agriculture

Agriculture is the predominant industry in Electoral Area B and most of the land upon
which this use occurs is situated within the Agricultural Land Reserve (ALR). The ALR is
a provincial zone in which agriculture is recognized as the priority use. Farming is
encouraged and non-agricultural uses are controlled. Local government zoning bylaws
cannot restrict farm use except with provincial approval. Also, local governments are
expected to plan in accordance with the provincial policy of preserving agricultural land.
In Electoral Area 'B' approximately 7,042 ha of land is in the ALR. This is equal to about
25.8% of the Plan Area. The majority of ALR land is concentrated in the valley bottom,
but is also present through the Richter Pass area and South Okanagan Grasslands
Protected Area.
Approximately 43.5% of ALR lands are situated within First Nation Reserve lands, with
a further 42.7% comprised in privately held parcels (the remaining ALR lands are seen
to be either Crown land or Protected Areas). Available BC Assessment Authority data
shows, however, that there is a s ignificant amount of farming occurring outside of the
ALR (principally around the Blind Creek and Mt Kobau areas). This is confirmed by the
2006 Agriculture Census which indicated that the total area of farms in Electoral Area
B was approximately 12,649 ha which is an area 79.6% larger than that covered by
the ALR.
The 2006 Agricultural Census also revealed that there are approximately 155 farms in
the Electoral Area (the largest type being fruit and tree-nut farming at 52%); that the
average size of these farms is 82 ha (with 87.1% of farms being less than 28 ha in
area); while the total gross farm receipts (excluding forest products sold) was
approximately $15,248,138.00 (with 35.5% of farms declaring less than $10,000 in
gross farm receipts). The top five crops by land area are:
1. Alfalfa & alfalfa mixtures (900 ha);
2. Apples (386 ha);
3. All other tame hay and fodder crops (181 ha);
4. Grapes (57 ha); and
5. Sweet Cherries (48 ha).
More recently, the Cawston area has emerged as the Organic Farming Capital of
Canada with the highest concentration of organic farms in the country as well as
being home to the Organic Farming Institute of British Columbia (OFIBC).
4.2

Residential

The majority of land assessed as being currently used for residential purposes is seen
to be within the Cawston Townsite and the ALR. The average size of these parcels is

Electoral Area B (Cawston) Official Community Plan Background Report (April 2011)
Page 20 of 38

approximately 3.23 hectares (ha), while the predominant form of housing is single
detached dwellings.
4.3

Commercial

Assessed commercial activity within the Electoral Area is seen to be restricted to only a
few properties, two of which are seen to be situated on Highway 3, while another two
are located on Main Street.
4.4

Industrial

Assessed industrial activity within the Electoral Area is seen to be more diffuse with
individual parcels located adjoining Highway 3 near Cawston, on M ain Street, on the
east side of Highway 3 new Chopaka, and near the Richter Pass.
4.5

Civic, Institutional and Recreational

This assessment classification applies to the Cawston Primary School (School District
No. 53 Okanagan-Similkameen), which provides education from kindergarten to
Grade 4 a nd includes a c atchment area that extends from west of Hedley, to several
kilometres east of Olalla south to the International Boundary. For Grades 5 through 12,
students attend the Similkameen Elementary Secondary School (SESS) in the Village of
Keremeos.
Student Enrolment: 2005 2010
2005/06

2006/07

2007/08

2008/09

2009/10

Change

Cawston Primary School

228

233

230

237

224

-1.8%

SESS

389

383

393

387

366

-5.9%

Source: BC Ministry of Education

The Cawston Community Hall also falls under this classification as does Kobau Park,
the Cawston Cemetery, two local churches, properties owned by conservation
organisations (i.e. land adjacent to the South Okanagan Grasslands Protected Area
under the ownership of The Land Conservancy of BC), and the Chopaka Customs
House.
4.6

Transportation and Infrastructure

Assessed land use include the BC Gas facility at 2369 Newton Road, a Crown interest
in an agricultural property at Barcelo Road, land at the north-east corner of the Electoral
Area that is owned by the Keremeos-Cawston-Ollala TV Society and the Okanagan
Soaring Association, and a Fortis interest in the property between Sumac Road and
Highway 3.

Electoral Area B (Cawston) Official Community Plan Background Report (April 2011)
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4.7

Vacant and Crown Land

Approximately 66.7% of the land base of Electoral Area B is comprised of undeveloped


Crown land outside of the valley bottom.

Electoral Area B (Cawston) Official Community Plan Background Report (April 2011)
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5.0

HOUSING

5.1

Housing Type & Tenure

Of the 460 private dwelling units recorded in Electoral Area B at the time of the 2006
Census, 94.6% were identified as being comprising of single detached housing.
Although this is reflective of the rural character of the area, it is, nonetheless, a
disproportionately high percentage. The remaining housing stock is comprised of either
apartments or duplexes.
Home ownership in Electoral Area B is approximately 70% (with the other 30%
comprised of renters), which is consistent with the provincial average, while 92.4% of
dwellings are occupied on a permanent basis (as opposed to being seasonal or second
homes, which is much more common in the northern part of the Similkameen Valley),
and 73% of the housing stock was constructed prior to 1986.
The Regional District generally tracks building activity in an Electoral Area through the
issuance of Building Permits (BP), however, Building Inspection services have never
been provided to Electoral Area B, so this information is not available.
In 2001, the average value of a dwelling in Electoral Area B was approximately
$143,981, this figure increased to $404,525 in 2006 which represents a 181 %
increase in only five years. This is significantly higher than the average dwelling value
in the Regional District, which was $322,499, but slightly below the provincial average of
$418,703. This increase is seen to have contributed to a 79.4% rise in the costs of an
average monthly mortgage in Electoral Area B between 2001 ($437/month) and 2006
($784/month).
5.2

Housing Affordability

Affordable housing is typically considered to be housing that costs less than 30% of a
households gross income. Based on 2005 income data, the following table shows the
maximum monthly housing costs and es timated maximum home purchase prices
available to typical households earning the median income in Electoral Area B.
Median Income
(2005)

Monthly Income
Available (30%)

Estimated Maximum
Home Purchase
Price (10% deposit)

Couples with children

$68,651

$1,716

$228,874

Couples without children

$39,382

$985

$117,652

Lone parent households

$29,587

$740

$80,430

One person households

$19,198

$480

$40,952

Other households

$29,614

$740

$80,533

Household Type

This table assumes a mortgage interest rate of 8.0%, average tax and heating costs in Canada, and the mortgage an average
Canadian would qualify for based on a 32 per cent debt service ratio (SOURCE: Canada Mortgage and Housing Corporation).

Electoral Area B (Cawston) Official Community Plan Background Report (April 2011)
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Based upon these calculations, individuals who do not already own their dwellings are
faced with serious affordability challenges in Electoral Area B. Between 2001 and
2006, the number of owned dwellings in Electoral Area B decreased by 12.3%, while
the number of rented dwellings increased by 33% (as the average monthly cost of
renting declined from $600/month to $450/month).

Electoral Area B (Cawston) Official Community Plan Background Report (April 2011)
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6.0

ECONOMY

The economy of Electoral Area B is dominated by agricultural (and other resources


based) industries, which accounted for over half of all employment in 2001 (55%) and
2006 (52%). No other industry accounted for greater than 9% of the labour force in
2006.
Labour Force Activity by Industry - Electoral Area 'B' (2006)
7%

Agriculture & Resource

9%

Construction
Manufacturing

6%

Wholesale Trade
Retail Trade
Finance & Real Estate

52%

9%

Health Care & Social Services


Educational Services

4%

Business Services

3%
0%

Other Services

7%

3%

Interestingly, the number of people who reported working at home in 2001 was
approximately 60%, a number which declined to 40.6% in 2006. This trend is seen to
be partially attributable to the changing demographics of the Electoral Area (i.e. smaller
households and declining population). A further 34% of people had a pl ace of
employment outside of the Electoral Area. The median income for all Census families
was 11.6% lower than for the RDOS as a whole, while overall labour force participation
rates have been somewhat higher.
Median Family Incomes
2000

2005
$62,346

$45,838

$51,829

$54,840

$43,071

$27,259

Area 'B'

RDOS

Electoral Area B (Cawston) Official Community Plan Background Report (April 2011)
Page 25 of 38

BC

Labour Force Participation Rates


2000
64.60%

2005
65.60%

65.20%
58.70%

Area 'B'

53.40%

55.50%

RDOS

Electoral Area B (Cawston) Official Community Plan Background Report (April 2011)
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BC

7.0

TRANSPORTATION

7.1

Roads

Public roads in unincorporated areas fall under the jurisdiction of the Ministry of
Transportation & Infrastructure (MoT). The Ministry is responsible for long term road
network capital improvement plans, which relates to its function as the subdivision
approving authority in the region. The major road through the Electoral Area is Highway
3, which connects the community with the Village of Keremeos (to the north-west) and
the Town of Osoyoos (to the east).
7.2

Public Transit

There is limited public transit provided to Electoral Area B.

Electoral Area B (Cawston) Official Community Plan Background Report (April 2011)
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8.0

INFRASTRUCTURE & SERVICING

Infrastructure and servicing are integral to community planning. Generally, land with
access to potable water and capable of either treating wastewater onsite or connecting
to a larger sewer system is conducive to development. However, the location of
infrastructure and provision of services should be driven by where a community wants
development to occur as opposed to the reverse. Ideally, as land use decisions are
made, service and infrastructure requirements both for construction and long-term
maintenance can be determined.
8.1

Water

Apart from those properties serviced by the Fairview Heights Irrigation District, water
service is predominantly provided by individual wells. T he Cawston Irrigation District
still maintains a number of water licences, but is not currently providing a service. The
Similkameen Improvement District also holds a number of water rights / licences (all of
which are for surface water) as well as controlling the dyke at Nickle Plate Lake.

8.2

Liquid Waste

Sewage treatment is principally achieved through on-site septic disposal systems.

Electoral Area B (Cawston) Official Community Plan Background Report (April 2011)
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8.3

Solid Waste

Residential garbage and recycling collection is currently accepted at the Keremeos


Transfer Station (the Landfill was closed in 2006), which transfers waste collected to the
Campbell Mountain Landfill outside of Penticton.
Homes are restricted on the amount of garbage that can be set out each week as part
of their regular garbage service. Garbage in excess of the quantity, volume or weight
allowed requires "tag-a bag" garbage stickers which must be p urchased in advance
and applied to any additional garbage bag.
Most areas receiving weekly curbside garbage collection currently receive a y early
bulky item collection to assist with the disposal of large items such as mattresses and
large furniture. Homes and bus inesses outside of collection service areas must haul
their own waste to the local landfill or transfer station or hire a private waste collection
company to provide the service.
The range of co-mingled recyclables collected at curbside includes cardboard,
recyclable paper products, plastic food containers, clean film plastic and m etal cans.
Residents and businesses may take container glass, at no charge, to RDOS landfills
and transfer stations and some local businesses starting July 1st, 2011.
Residents in the program can presently prepare an unlimited amount of their
compostable yard and garden waste for pickup on scheduled yard and garden waste
collection weeks. The Keremeos Transfer Station accepts compostable yard and
garden waste free of charge.
8.4

Stormwater

There are no piped drainage systems or storm water regimes in the area.
8.5

Utilities

Utilities, including telephone, hydro and internet service, are provided by private
businesses.

Electoral Area B (Cawston) Official Community Plan Background Report (April 2011)
Page 29 of 38

9.0

PARKS, TRAILS & OPEN SPACES

Parks and open space are fundamental to health and wellness of the residents in a
community. Parks may function as passive recreation for such activities as hiking and
walking, protection for wildlife habitat, sports fields, and childrens playground or for
transportation linkages.
Currently, the only community park within Electoral Area B is Kobau Park, which is
approximately 8.7 ha in area and adjoins the Similkameen River at the south end of
Coulthard Road.
The Burlington Northern Rail Trail proposes to use an approximately 13.3 km stretch of
the abandonded Vancouver, Victoria and Eastern Railway rail bed from the Red Bridge
in Keremeos to Kobau Park in Cawston.
The South Okanagan Grasslands Protected Area is situated within Electoral Area B
(as well as parts of Electoral Areas A and C). T he Protected Area is approximately
9,364 ha in area and its primary role is to protect the dry grasslands and open forests
that represent one of the four most endangered ecosystems in Canada. The protected
area comprises four sites: Mt. Kobau, Kilpoola, Chopaka East and Chopaka West and
protects all known Canadian sites of at least three plant species and habi tat for an
astonishing number of rare and endangered birds, mammals, reptiles and amphibians.
Part of the Electoral Area is also included in the feasibility study being undertaken in
relation to the creation of a National Park Reserve in the South Okanagan Lower
Similkameen to represent the Interior Dry Plateau Natural Region. I n 2003, the
Governments of Canada and British Columbia signed a Memorandum of Understanding
committing the two governments to examine the feasibility of creating such a park in the
area. A ccording to Parks Canada, the Interior Dry Plateau Natural Region is
characterized by flat or rolling plains dissected by deep narrow valleys, gorges and long,
narrow lakes. Vegetation ranges from parched "desert-like" conditions on valley
bottoms, through moist sub-alpine forest to alpine tundra on mountain tops. This is one
of the most ecologically diverse regions in Canada, and a s ignificant portion of the
region's biota is found nowhere else in the country.
The provision of parkland at the time of subdivision is a legal requirement of the Local
Government Act. The owner of land being subdivided must either dedicate 5% parkland
in a location acceptable to the local government or pay 5% cash-in-lieu to the Regional
District an amount that equals the assessed value of the land to be subdivided.

Electoral Area B (Cawston) Official Community Plan Background Report (April 2011)
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Electoral Area B (Cawston) Official Community Plan Background Report (April 2011)
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Electoral Area B (Cawston) Official Community Plan Background Report (April 2011)
Page 32 of 38

10.0 ENVIRONMENTALLY SENSITIVE AREAS


Sensitive ecosystems within developed landscapes provide patches of natural areas
that are critical to the survival of wildlife, fish and plant species. They are also important
to creating healthy and a ttractive communities for people. Wetlands purify drinking
water and pr ovide flood protection; forests clean the air and provide relief from urban
settings; cliffs and wildlife trees provide important nesting habitat for rare bird species.
The Similkameen Valley is part of the Southern Interior Ecoprovince, which has the
greatest diversity of birds in the interior of British Columbia and the most breeding
species of all the Ecoprovinces in BC; it holds 74% of all bird species known to occur
and 70% of those species known to breed in the province.
Of the sixteen biogeoclimatic zones in the province, the low elevation areas of the
Similkameen Valley are home to three of the four of most rare and significant zones
identified for conservation concern in the province (Bunchgrass (BG), Ponderosa Pine
(PP), and, Interior Douglas Fir (IDF). Further, low elevation grassland communities are
the rarest land cover type in the province and ar e concentrated in these three
biogeoclimatic zones.

Figure 10.1 - Biogeoclimatic Zones of the Similkameen Valley

Figure 10.1 shows where these zones are relative to named locations in the
Similkameen. Note that the Bunchgrass zone is exclusively in the valley bottom from
Keremeos southward. The Interior Douglas Fir (very dry hot) zone follows the major low
elevation drainages including the Tulameen and the Similkameen rivers, and a

Electoral Area B (Cawston) Official Community Plan Background Report (April 2011)
Page 33 of 38

substantial proportion of the Ponderosa Pine zone falls in the area around the
community of Princeton.
Sensitive Ecosystem Inventory (SEI) identifies and maps rare and/or fragile ecosystems
that are relatively unmodified, ecologically fragile, have high values for wildlife and/or
may be recognized as at risk in the provincial landscape (Figure 10.2 outlines the SEI
study areas). SEI is a flagging tool that provides scientific information and support to
local governments and others working to maintain or enhance biodiversity.

Figure 10.2 - Areas of Similkameen covered by Sensitive Ecosystems Inventory

In the Lower Similkameen, historic mapping analysis identifies sensitive ecosystems


that have experienced significant losses: Sagebrush-needle-and-thread grass (46%
remaining), riparian-wetland ecosystems such as Water Birch-dogwood swamp (just >
than 8% remaining) and Cottonwood-dogwood floodplain (69% remaining).

Electoral Area B (Cawston) Official Community Plan Background Report (April 2011)
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11.0 HAZARD LANDS


Hazard lands include, but are not limited to areas the Regional District has reason to
believe are subject to flooding, mud flows, torrents of debris, erosion, rock fall, landslip,
subsidence, avalanche and wildfire.
11.1

Floodplain

Flooding has historically been a problem along the Similkameen River, and to a lesser
extent along other watercourses in the valley. I n 1973, the Province completed 17
floodplain mapping sheets covering the area from Princeton to the International
Boundary. Flood elevations for these sheets were based on observed gauge readings
and air photographs obtained during the 1972 flood. An additional problem unrelated to
freshet flooding is occasional ice-jamming which occurs during the winter. T his may
result in flooding levels higher than those in the spring, and i n damage to dyking and
dyke protection works.
Dykes have been constructed along the Similkameen River in the Keremeos-Cawston
area to provide a measure of flood protection as the majority of the Townsite is situated
within the floodplain.

Electoral Area B (Cawston) Official Community Plan Background Report (April 2011)
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11.2

Wildifre

In 2004, the Regional District undertook the preparation of Community Wildfire


Protection Plans (CWPP) in those communities with a high probability and consequence
of fire in the interface zone. T hese plans were prepared in accordance with
recommendations contained within the provincial governments Firestorm 2003
Provincial Review. The CWPP program was launched to improve fire prevention in the
WUI zone and to improve community safety and reduce the risk of property damage.
The Wildfire Assessment did not identify any communities within Electoral Area B as
being a priority for fuel management work. Due to forest cover and topography, there is
no significant threat in this area of the Regional District.

Electoral Area B (Cawston) Official Community Plan Background Report (April 2011)
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12.0 DEVELOPMENT PERMIT AREAS


Specific areas in a community may be designated by an OCP as Development Permit
(DP) Areas. The Local Government Act allows DP Areas to be des ignated for the
following purposes only:

protect development from hazardous conditions;

protect agricultural land;

protect the natural environment, its ecosystems and biological diversity;

revitalize an area in which a commercial use is permitted;

establish objectives for the form and character of intensive residential development;

establish objectives for the form and character of commercial, industrial or multifamily residential development; and

establish objectives to promote energy conservation, water conservation, and


reduce greenhouse gases.

In 2004, the Provincial Government enacted the Riparian Areas Regulation (RAR)
through Section 12 o f the Fish Protection Act. RAR 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). This regulation applies, by statute, to
the whole of the area found within the geographic boundaries of the RDOS.
In other Electoral Areas, the RDOS has applied RAR through the designation of a
Watercourse Development Permit (WDP) Area under Section 919.1(1)(a) of the Local
Government Act being for the protection of the natural environment, its ecosystems
and biological diversity. DPs are generally contained within an OCP and are one of the
few directly regulatory aspects of a Plan.
It is anticipated that a provincial requirement of any OCP for Electoral Area B will be
the inclusion of a WDP Area on mapped watercourses.

Electoral Area B (Cawston) Official Community Plan Background Report (April 2011)
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Electoral Area B (Cawston) Official Community Plan Background Report (April 2011)
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