TOWNSHIP OF ESQUIMALT STAFF REPORT
MEETING DATE: September 21, 2026 Report No. DEV-26-042
TO: Council
FROM: Bill Brown, Director of Development Services
SUBJECT: Development Capacity Study Final Report
RECOMMENDATION:
Recommendation
That Council receive the Esquimalt Development Capacity Study Draft Findings Report August 2026 Version 2.1 attached as Appendix “A” to staff report DEV-26-042 for information.
Body
EXECUTIVE SUMMARY:
In order to provide Council, commissions, residents, developers, businesses, and staff with a clear understanding of the development capacity of the Township for future residential development, Licker Geospatial Consulting was 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 or be constrained by potential future residential development both temporarily and spatially. Identifying these constraints will help Council in its decision-making processes related to land use and infrastructure. The study will also provide valuable background information in the upcoming development of Development Cost Charges and Amenity Cost Charges Bylaws as well as the major review of the Official Community Plan.
BACKGROUND:
Since reporting preliminary results to the Committee of the Whole on May 11, 2026, the consulting team has now completed its data analysis. The final analysis is similar to what was reported to the Committee of the Whole in May, namely, based on the proposed land use policy in the Official Community Plan, there are no major constraints to future development. The study does identify areas with localized sanitary sewer and water servicing limitations, however, capacity in these areas could be increased through infrastructure upgrades. In addition, electrical capacity is not currently identified as a limiting factor based on discussions with BC Hydro. The other variables analyzed, namely:
- Traffic
- Transit
- Recreation and Parks
- Tree canopy
- Emergency services - police, fire, and ambulance
- Fiscal capacity
were identified as factors that will be affected by growth rather than factors that will limit growth. The report states: “Although these variables do not currently represent municipality-wide constraints to development, the analysis and engagement demonstrate the importance of monitoring service levels and coordinating future investments to maintain community wellbeing and municipal service provision as growth occurs” (pg. 7). 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.
Chronology:
September 9, 2024: Council Project Sign-off
July 23, 2025: Request for Proposals Issued
October 2025: Consultant launches project.
April 8, 2026: Consultants present Version 1.1 to the Design Review Committee for comments.
April 21, 2026: Consultants present Version 1.1 to the Advisory Planning Commission
May 11, 2026: The Committee of the Whole reviewed the preliminary results of the Development Capacity Study.
May 27 to June 19, 2026: Virtual Open House with display boards, links to information, and an on-line survey. There were over 200 visits to the project page on Engage Esquimalt.
June 11, 2026: Development Capacity Study Open House (3:00 p.m. to 7:00 p.m. at the Esquimalt Recreation Center.
ANALYSIS:
Using the best available data, the consulting team has undertaken a detailed analysis of several variables that could potentially impact growth or be impacted by growth. This report represents a significant body of work that has taken data from a myriad of sources from BC Assessment to Esquimalt’s Financial Plan, to the City of Victoria’s water model, and synthesized the results to produce a series of maps that spatially illustrate the degree to which each variable either constrains growth or may be impacted by growth. While some of the results are counter-intuitive (e.g. traffic), they are nonetheless based on industry standards. A detailed analysis of the data is found in the report attached as Appendix “A”. A technical report is also available that details the methodologies used for the analysis.
The results of the analysis indicate that there are no significant constraints to growth in Esquimalt. There are pockets of localized constraints based on water and sewer service; however, these can likely be overcome by infrastructure improvements. One of the most powerful results of this assessment is that it will provide valuable information to the consulting team that would be involved in creating any future development cost charges and amenity cost charges bylaws. These cost charges will help fund infrastructure improvements that result from growth.
The report provides a specific note on context: “[This report] is a technical assessment based on available data and modeling and should be considered alongside broader social, environmental, and policy considerations that are outside of the scope of this study”. Two notable areas not covered by the study are K-to-12 education and health care. They were omitted from the study as they are largely beyond the decision-making authority of Council. However, earlier in the year Council received the Health Needs Assessment Report (see staff report DEV-25-055 at Committee of the Whole on January 19, 2026) which outlined many of the issues in the Township related to Health Care. Also, the results of the Development Capacity Report were shared with School District No. 61 to help them with their school enrolment projections. To help other agencies in their work, this report will be disseminated widely including to CFB Esquimalt, the Esquimalt and Kosapsum First Nations, the Urban Development Institute, the Esquimalt Chamber of Commerce, the West Bay Residents Association, and any other interested person/organization.
The Development Capacity Study is a powerful tool that will help Council, staff, and the community plan for future growth. It will inform decision making related to the crafting of Development Cost Charge and Amenity Cost Charge bylaws and will be a seminal resource as Council and the community embark on a major review of the Official Community Plan. It will also help guide planning and budgeting for major infrastructure upgrades. In addition, it is a living document that represents a specific moment in time. As such, to remain a powerful tool, it should be updated regularly (e.g. every five years) to account for new development and upgraded services.
OPTIONS:
1) That Council receive the Esquimalt Development Capacity Study Draft Findings Report August 2026 Version 2.1 attached as Appendix “A” to staff report DEV-26-042 for information.
2) That Council request further analysis on selected topics.
COUNCIL PRIORITY:
Housing
FINANCIAL IMPACT:
The approved budget was $150,000. An additional $12,000 was required to complete the project.
COMMUNICATIONS/ENGAGEMENT:
Open House - An open house was conducted at the Recreation Centre from 3:00 p.m. to 7:00 p.m. on June 11, 2026.
A Virtual Open House was conducted from May 17, 2026, to June 19, 2026. There were over 200 visits to the project page on the Engage Esquimalt Website.
The results of the public consultation are summarized on pages 19 and 20 of the report attached as Appendix “A”.
TIMELINES & NEXT STEPS:
This is the conclusion of the process. The results of the Esquimalt Development Capacity Study will be used to guide Council, commissions, and staff as they review development proposals and plan infrastructure upgrades. In addition, the information in the Study will be used in the Development Cost Charges and Amenity Cost Charges Bylaw development, should such a project be initiated. Finally, the results of the Study will provide seminal background information for the major review of the Official Community Plan expected in the next term of Council.
REPORT REVIEWED BY:
1. Deb Hopkins, Director of Corporate Services, Reviewed
2. Ian Irvine, Director of Finance, Reviewed
3. Dan Horan, Chief Administrative Officer, Concurrence
LIST OF ATTACHMENTS:
List all items attached to the Staff Report
1. Appendix “A” Esquimalt Development Capacity Study: Draft Findings Report August 2026 Version 2.1
2. Appendix “B” 8.5 x 11 copies of the Report’s maps
3. Appendix “C” Consultant’s presentation