In our previous article, we discussed the legal and organizational considerations that churches in British Columbia should address before pursuing redevelopment of their property. Whether a congregation is considering affordable housing, a multi-use community hub, or renewed space for worship and ministry, the next step is to understand how municipal land use rules may shape what can be built on the site.
For many church boards and trustees, municipal planning requirements can be unfamiliar and complex. However, understanding the basics of zoning is an important early step. If a proposed project does not fit within the existing zoning, the church may need to apply for rezoning before it can move forward. This article explains what zoning is, how it affects church property, when rezoning may be required, what the process involves, and how church leaders can navigate it effectively.
1. What is Zoning?
At its simplest, zoning is a set of rules created by a city to control what can be built and where. These rules are set out in a zoning bylaw that divides the city into different districts or zones, each with its own list of permitted uses – meaning the types of activities and occupancies allowed on a particular property. For example, a residential zone may allow homes but not farms, while a commercial zone may allow stores, restaurants, or offices but not factories.
The bylaw also sets limits on how much development is allowed under the existing zoning. These include, for example, how tall buildings may be, how much floor area is permitted relative to the size of the lot, and the minimum number of parking spaces required based on the proposed use or number of units. It also establishes other site and design requirements that shape how development is arranged on the property and how new buildings relate to their surroundings.
Overall, the purpose of zoning is to ensure that land is used in an orderly, compatible, and predictable way that aligns with the city’s broader community planning goals.
2. How Zoning Affects Church Property: The Vancouver Example
In the City of Vancouver, zoning rules are set by the Zoning and Development By-law No. 3575, made under the Vancouver Charter. The by-law divides the Vancouver into several types of zoning districts, such as residential, commercial, industrial, heritage, rental, and comprehensive development. and each district has its own detailed rules in a “district schedule.” According to the City’s Land Uses by Zoning District reference table, churches may be located in many of these districts, including residential neighbourhoods as well as various commercial, industrial, and heritage areas.
For any church property, the applicable district schedule is the key document. It determines which additional uses may be permitted and how much development the current zoning allows. If a church wishes to add new buildings, increase its floor area, or introduce new uses such as housing or community-serving space, the proposal must fit within these limits. If the existing zoning does not allow the proposed uses or level of development, the church will need to apply to the city for rezoning before proceeding.
3. What to Expect from the Rezoning Process in British Columbia?
Rezoning is the formal process used by a municipality to change the zoning for a property so that new uses or a different scale of development can be considered. The process is discretionary and can be lengthy, as it involves policy review, public input, and Council approval. Church leaders are encouraged to engage planning and legal advisors early to assess feasibility, align the proposal with City policies, and help navigate the process.
The main steps in the rezoning process are outlined below.
Step 1: Confirm whether rezoning is needed.
City staff first assess whether the proposal fits the property’s existing zoning. If it does, the project can proceed directly to a development permit. If not, a rezoning application is required. Proposals generally need to align with the community’s adopted plans, such as an Official Community Plan.
Step 2: Speak with the City and prepare your submission.
An early discussion with planning staff helps confirm policy support and required application materials. Most municipalities require or strongly encourage a pre‑application meeting to identify issues, needed studies, and submission requirements.
Step 3: City review, public input, and Council decision.
After you file, the City reviews the application, circulates it internally, provides public notice and invites feedback. Planning staff then draft a report and make a recommendation to City Council.
From there, the application proceeds to Council for decision through different pathways. Where a proposed rezoning is consistent with an Official Development Plan (“ODP”) and the sole purpose of the rezoning is to permit a development that is, in whole or in part, residential, with at least 50% of the gross floor area devoted to residential use, the City is prohibited from holding a public hearing. In these cases, the application is brought before Council for a direct decision at a Council meeting.
Where a rezoning is consistent with an ODP but the residential component accounts for less than 50% of the gross floor area, Council has discretion to either proceed directly to a decision or refer the application to a public hearing. Rezoning applications that are not consistent with an ODP must proceed to a public hearing before Council considers enactment of the proposed rezoning by-law. Where a public hearing is held, Council will consider and decide the rezoning at the hearing.
Step 4: From approval to construction.
If Council approves the rezoning, the new zoning only takes effect once all required conditions are met – typically things like registering legal agreements and completing servicing obligations. Rezoning alone does not authorize construction; the church must still obtain a development permit (for design and site planning) and a building permit (for building code compliance) before any work can begin.
As for timing, rezoning timelines vary depending on project complexity. In Vancouver, the City’s rezoning process materials indicate a target timeline of approximately 15 months from application intake to Council decision and by-law enactment, although more complex projects or those requiring additional revisions may take longer.
4. Engaging with the City and Your Neighbours to Move the Redevelopment Project Forward
As noted above, rezoning is a discretionary process that involves both planning staff review and community input. Early and ongoing engagement with City staff and nearby residents can help identify concerns, build support, and reduce potential delays. Clear communication about how the project aligns with City policies and serves neighbourhood needs can support a smoother approval process.
5. Conclusion
Understanding how zoning affects permitted uses, development potential, and the need for rezoning is an essential first step for churches considering redevelopment. In the next part of our series, we will explore how churches should legally structure their relationships with developers and builders to protect the church’s interests both during the development process and into the future.