TOWNSHIP OF ESQUIMALT STAFF REPORT
MEETING DATE: May 11, 2026 Report No. DEV-26-021
TO: Committee of the Whole
FROM: Bill Brown, Director of Development Services
SUBJECT: DEV-26-021 Review of the Preliminary Results of the Development Capacity Study
RECOMMENDATION:
Recommendation
That the Committee of the Whole provides staff and the consulting team with any questions or concerns that they have about the preliminary results of the Development Capacity Study as described in the Esquimalt Development Capacity Study: Draft Findings Report Version 1.2 dated April 2026 and attached to staff report DEV-26-021 as Appendix “A”; and,
That the Committee of the Whole recommend that Council receive the Esquimalt Development Capacity Study: Draft Findings Report Version 1.2 for information.
Body
EXECUTIVE SUMMARY:
In order to provide Council, committees, residents, businesses, and staff with a clear understanding of the development capacity of the Township for future residential development, Licker Geospatial Consulting has been engaged to produce a report that analyzes a number of variables including land use, sanitary sewer, water, electricity, traffic, transit, recreation and parks, tree canopy, and emergency services that may constrain potential future residential development both temporarily and spatially. Identifying these constraints will help Council in its decision-making processes and will help guide the spatial distribution of residential land uses in the new Official Community Plan.
BACKGROUND:
To help guide its land use planning function, Council has authorized staff to hire a consultant to conduct a Development Capacity Study (see staff report DEV-24-047). Since the project commenced in October 2025, the consulting team has been collecting and analyzing data related to the following variables:
- Land use
- Sanitary sewer capacity
- Potable water capacity
- Electricity supply capacity
- Traffic
- Transit
- Recreation and Parks
- Tree canopy
- Emergency services - police, fire, and ambulance
The preliminary findings indicate that there are few constraints to potential future residential development in Esquimalt. The most significant constraint identified so far is the capacity of the sanitary sewer system in certain areas. It should be noted that there are several areas where additional analysis needs to be completed such as:
- Obtaining the preliminary results of a new water modeling initiative by the City of Victoria.
- Fine tuning the financial model to account for unique attributes of the situation in Esquimalt.
- Incorporating results of the Recreation Strategic Plan.
- Incorporating proposed housing numbers on CFB Esquimalt lands in Esquimalt.
- Providing greater clarity related to the results of the traffic modeling exercise.
None of this additional information is expected to make significant changes to the results of the preliminary analysis.
Details of the methodology used to assess each variable along with the results of the analysis are found in the report attached as Appendix “A”. Appendix “B” contains 8.5 x 11 images of each map in the report for easier reading. Following the gathering of information from the review of the preliminary draft by the Design Review Committee, the Advisory Planning Commission, and the Committee of the Whole; staff and the consultants will address any issues raised, update various analyses where required, and publish a revised draft report for public review which will include both a physical (scheduled for June 11, 2026 at the Recreation Centre) and a virtual open house. Once the public review has been completed, a final report will be prepared and presented to the Council in July 2026.
Chronology:
September 9, 2024: Council Project Sign-off
July 23, 2025: Request for Proposals Issued
October 2025: Consultant launches project.
April 8, 2026: Consultant’s present Version 1.1 to the Design Review Committee for comments.
April 21, 2026: Consultant’s present Version 1.1 to the Advisory Planning Commission
Advisory Body Recommendations:
The Design Review Committee reviewed Version 1.1 of the Report at their April 8, 2026, meeting. The following comments were made by the Committee:
- It was suggested that information and/or analysis on population growth, absorption rates of new housing, median household income, affordability of housing units, and the capacity of health and education services be included to provide a complete view of the impact of and capacity for development;
- Concern was expressed regarding the impact of too many single family homes being converted into condo or apartment buildings as this may result in families moving outside of the municipality to seek appropriate housing types;
- The social implications of increasing development to meet housing targets must be understood and the composition of housing typology that is developed in Esquimalt is important to analyze;
- It was suggested that a preamble be added to this report to explain the purpose and use of this study, its limitations, and the other factors that inform Council decision-making such as the Official Community Plan;
- It was suggested that if there are areas of analysis, such as tree canopy, that are deemed not to be a constraint to development that it be clarified whether this lack of constraint is related to an absence of policy or other information describing what is considered to be sufficient;
- Greater analysis on transportation and current challenges associated with traffic was suggested;
- The reception and use of this study could vary by different audiences, such as Council, the public, and developers, should be considered;
- Considering capturing elements that cannot be mapped such as the impact of climate change, food security, tree canopy, green space, and other factors that impact development and the services required in our community was suggested;
- Emergency planning metrics such as evacuation planning in development capacity analysis should be considered for inclusion;
The Advisory Planning Commission reviewed Version 1.1 of the Report at their April 21, 2026, meeting. The following comments were made by the Committee:
- Concern was expressed regarding the capacity of sewage, water, and electrical infrastructure, including sewage connection points in constrained areas and identified system degradation, and clarification was requested regarding how these factors may impact overall development capacity, particularly in the context of potential growth associated with CFB Esquimalt;
- Concern was expressed regarding the accuracy of the transit data provided, and it was noted that while the study identifies traffic volumes, additional analysis of transportation capacity-including user ratios, arterial versus local traffic, and identified pinch points-should be included, as traffic congestion is both an existing and perceived concern and may warrant reconsideration as a constraint to growth;
- It was suggested that development capacity analysis be expanded to include additional community metrics, such as child care capacity, commercial services, local economic activity, and employment opportunities, to better reflect the needs of a diverse and growing population;
- It was suggested that greater integration and interconnectivity between data, mapping, and analysis be incorporated, including clearer identification of capacity and constraints in the executive summary, and consideration of how land use, recreation facilities (including schools), transportation networks, surrounding geographic constraints, and limited commercial and industrial space interact;
- It was suggested that tools or mechanisms be developed to encourage timely development and discourage land holding, to support active use of developable land;
- It was noted that the report serves as a valuable tool to inform decision-making, support advocacy and collaboration related to shared infrastructure and services, and demonstrate capacity to external partners, and interest was expressed in understanding how public input will inform the report;
- It was noted that consideration of CFB Esquimalt, employment, and the availability of commercial and industrial space is essential to understanding development in Esquimalt.
Referral Comments:
The report has not been referred to other departments or agencies, however, the Director of Engineering and Public Works has been involved in reviewing analysis of engineering-related variables (e.g. sewer capacity and traffic modelling) and the Director of Parks and Recreation has been involved in discussions related to parks, recreation, and tree canopy throughout the process. In addition, staff and consultants have met with officials from the Department of National Defense regarding future housing plans for CFB Esquimalt, and the City of Victoria regarding water distribution.
ANALYSIS:
A detailed analysis of the data is found in the Report attached as Appendix “A”
OPTIONS:
Option 1:
As staff and the consulting team prepare the next version of the Report, it is important that Council, sitting as the Committee of the Whole, is comfortable with the contents of the report and that any issues or concerns are addressed as soon as possible.
Proposed Resolution: “That the Committee of the Whole provides staff and the consulting team with any questions or concerns that they have about the preliminary results of the Development Capacity Study as described in the Esquimalt Development Capacity Study: Draft Findings Report Version 1.2 dated April 2026 and attached to staff report DEV-26-021 as Appendix “A”; and
That the Committee of the Whole recommend that Council receive the Esquimalt Development Capacity Study: Draft Findings Report Version 1.2 for information”
Option 2:
If Council, sitting as the Committee of the Whole, is uncomfortable with some aspect(s) of the report, that require further discussion, they can request that staff and the consulting team return to Council with additional information. This will delay the process and mean that public consultation will likely occur over the summer period, and the final report will not be presented to Council until the fall.
Proposed Resolution: “That the Committee of the Whole recommend that Council direct staff and the consulting team to return to a future meeting of Council with additional information.”
COUNCIL PRIORITY:
Housing
FINANCIAL IMPACT:
The budget for this project is $150,000 and has been approved by Council. The project is currently on budget and on schedule.
COMMUNICATIONS/ENGAGEMENT:
Once revisions are made to the Report based on consultation to date, a revised version will be produced and disseminated to the public for review and comment. There will be an online virtual open house for several weeks along with a physical open house on June 11, 2026.
TIMELINES & NEXT STEPS:
Staff and the consulting team will take all of the feedback received from the Advisory Planning Commission, the Design Review Committee, and the Committee of the Whole along with additional analysis outlined in the Report and prepare a revised version along with accompanying story boards for the public consultation portion of process which will feature a several week long online virtual open house and a physical open house on June 11, 2026.
REPORT REVIEWED BY:
1. Sarah Holloway, Manager of Corporate Services, Reviewed
2. Ian Irvine, Director of Finance, Reviewed
3. Dan Horan, Chief Administrative Officer, Concurrence
LIST OF ATTACHMENTS:
1. Appendix “A” Esquimalt Development Capacity Study: Draft Findings Report Version 1.2 April 2026
2. Appendix “B” 8.5 x 11 copies of the Report Maps
3. Appendix “C” Consultant’s presentation