TOWNSHIP OF ESQUIMALT STAFF REPORT
MEETING DATE: December 15, 2025. Report No. CSS-25-008
TO: Council
FROM: Judy Kitts, Director, Strategic Initiatives
SUBJECT: Esquimalt Urban Deer Project
RECOMMENDATION:
Recommendation
That Council direct staff to shift to a monitoring-only approach for deer management, conduct a deer management and social carrying capacity survey, and work with a contractor to prepare a comprehensive immunocontraception (IC) program proposal for Council’s consideration in Q3 2026.
Body
EXECUTIVE SUMMARY:
The Township of Esquimalt has completed a four-year immunocontraception (IC) study in partnership with the University of Victoria to assess the feasibility of IC for managing urban deer populations. The study demonstrated that IC significantly reduced reproduction and maintained low fawn recruitment due to Esquimalt’s semi-isolated geography. With research concluded, Council must decide whether to introduce deer management as a municipal service, shift to monitoring only, or discontinue intervention. This report outlines key findings, options, financial implications, and recommended next steps.
BACKGROUND:
In summer 2020, staff received a report from the University of Victoria’s Applied Conservation Macro Ecology (ACME) Lab titled “Black-Tailed Deer Population Size and Management in Esquimalt, British Columbia.” The report proposed a study to assess deer population and explore immunocontraception (IC) as a management tool, similar to a project undertaken in the District of Oak Bay.
In August 2020, Council directed staff to enter into a contract with UVic to conduct a three-year IC study (2021-2023). Additional funding from the Natural Sciences and Engineering Research Council of Canada extended the project into 2024.
The Township has now received the final report, “Black-Tailed Deer Population and Spatial Responses to an Immunocontraception Trial in Esquimalt, British Columbia.” The study examined whether Esquimalt’s deer population could be managed through IC. Research indicates that IC is most effective when immigration is minimal and 60-80% of resident females are treated.
To establish baseline data for the study, researchers installed 41 cameras across the Township to estimate population density before and after treatment. A total of 80 deer were captured; 60 were treated with PZP-22, an IC treatment that is effective for up to 22 months, and 20 were tagged as controls. All does were fitted with identification collars.
Key findings of the study include:
• Fawn detections declined by 28% in 2022.
• Low reproductive output was sustained through 2024 due to limited migration.
• Esquimalt’s geography, surrounded by ocean and major roads, creates barriers that make IC highly effective here.
ANALYSIS:
With the research study complete and cameras removed, the Township must determine its approach to deer management.
- Provincial Role: Wildlife management is under provincial jurisdiction. The province now allows IC permits outside research contexts but is not currently providing any funding. Costs would fall to the Township.
- New Service: Moving forward with deer management would mean the Township assumes delivery of a new service for residents of a provincially mandated matter.
- Regional Issue: Deer populations are not confined by municipal boundaries. While Esquimalt’s geography creates some natural barriers, movement between jurisdictions can still occur. Coordinating with neighboring municipalities would help ensure a consistent and effective approach to management.
- Social Carrying Capacity and Service Delivery: Although there is no scientific evidence that deer overpopulation is causing ecological harm in Esquimalt, community tolerance for deer presence is a critical factor in shaping management decisions. A community survey would help to determine whether residents view current population levels as acceptable or desire changes.
- Management Options: A formal proposal from qualified contractors would best support any future IC program. Options could include:
• Treating the 20 control does from the original study.
• Providing booster IC treatments to previously treated does.
• Administering IC to new young does entering the population.
• Exploring collaboration or synergies with neighboring municipalities to share resources and expertise.
Bylaw Enforcement and Education: Other tools for deer management include fines for feeding wildlife, education on how to avoid human-deer conflicts, deer fencing, and “expect deer” signage.
OPTIONS:
1. Shift to a monitoring-only approach for deer management, conduct a deer management and social carrying capacity survey, and work with a contractor to prepare a comprehensive IC program proposal for Council’s consideration in Q3 2026.
• Shift to population monitoring using road surveys, drones, and community reporting. Note that cameras have been removed.
• Staff to use other tools (i.e. signage, bylaw enforcement, education) to support deer management in the Township.
• Conduct a resident survey to better understand the Township’s social carrying capacity.
• Use feedback to guide future management decisions, whether to maintain, reduce, or allow population growth.
• Work with a contractor to develop a comprehensive IC program proposal, based on research findings and survey feedback, for Council’s consideration.
2. Partner with a local contractor and submit an application to the province for a permit to deliver the IC program in 2026, seeking opportunities to collaborate with other neighbouring municipalities, where possible.
• Work with a contractor to develop a 2026 IC program with recommendations for 2027 and 2028.
• Coordinate with other neighbour municipalities on possible synergies for the delivery of the IC program in 2026.
3. Discontinue IC and Monitoring and Rely on Natural Regulation
• Stop IC treatments entirely.
• Stop monitoring for ecological impacts and revisit if overabundance becomes evident.
• Lowest cost but may lead to increased complaints or conflicts if population rebounds.
COUNCIL PRIORITY:
Engaged and Healthy Community
FINANCIAL IMPACT:
The Deer Study cost was $373,000 over three years (approximately $125,000/year) with additional funding from the Natural Sciences and Engineering Research Council of Canada in 2024.
Future costs will depend on the option approved by Council:
- Option 1: A monitoring-only approach would involve expenses for population surveys and a social carrying capacity survey. Costs are expected to be approximately $15,000.
- Option 2: Continuing the IC program would require a formal quote from a local contractor, however, based on previous budgets and research outcomes, staff expect that costs could be up to $75,000.
- Option 3: Discontinuing IC and monitoring would have no anticipated financial implications.
COMMUNICATIONS/ENGAGEMENT:
Deer education was included in the contract during the initial years of the program. This component provided residents with important information on wildlife safety, what to do if an injured deer is observed, and tips for keeping pets safe around deer.
Further communication with residents will include an update on the results of the Deer Study and outline next steps as approved by Council.
TIMELINES & NEXT STEPS:
If Council approves the recommendation:
• Q1 2026:
o Share study results with the community through Township social channels.
o Develop and issue a resident survey to better understand the Township’s social carrying capacity.
o Meet with other municipalities regarding deer management strategies and approaches.
• Q2 2026:
o Work with a local contractor to develop an IC program for the Township.
• Q3 2026:
o Undertake population monitoring with identified contractor.
o Present contract recommendation for IC program to Council for decision.
• Q4 2026:
o Apply for provincial permit for IC program, if approved.
o Finalize IC program with contractor, if approved.
• Q1 - Q4 2027:
o Implement IC program in the Township, if approved.
REPORT REVIEWED BY:
1. Ian Irvine, Director of Finance, Reviewed
2. Deb Hopkins, Director of Corporate Services, Reviewed
3. Dan Horan, Chief Administrative Officer, Concurrence
LIST OF ATTACHMENTS:
1. Black-Tailed Deer Population and Spatial Responses to an Immunocontraception Trial in Esquimalt, British Columbia. Dr. Jason T Fisher, Isabel Giguére, Dr. Andrew Barnas, and Dr. Adam Hering. Applied Conservation Macro Ecology (ACME) Lab, University of Victoria. November 2025, ver. 11.13.