TOWNSHIP OF ESQUIMALT STAFF REPORT
MEETING DATE: March 16, 2026 Report No. SI-26-007
TO: Council
FROM: Judy Kitts, Director, Strategic Initiatives
SUBJECT: Crossing Guard Request, École Victor-Brodeur
RECOMMENDATION:
Recommendation
That Council review the information provided in this report and provide direction to staff regarding the request for a crossing guard at École Victor-Brodeur.
Body
EXECUTIVE SUMMARY:
On November 11, 2025, Directrice adjointe Madelaine Pepenel of École Victor-Brodeur wrote to the Township of Esquimalt requesting support for the daily presence of a responsible adult to assist the school’s student crossing guards during morning arrival and afternoon dismissal periods.
The school operates a student-led crossing guard program; however, due to collective agreement constraints, teacher involvement is limited to 15 minutes per week.
This report outlines the background, municipal context, recent safety improvements, and options for Council’s consideration.
BACKGROUND:
Local Context:
In July 2022, the Greater Victoria Crossing Guards Association (GVCGA), which managed crossing guards across five municipalities, ceased operations due to an unsustainable funding model. Historically funded by municipal grants and non-profit management, the responsibility for crossing guards in the Greater Victoria School District has shifted toward municipalities and school boards.
The GVCGA served École Victor-Brodeur, under School District 93 (SD93), and Macaulay Elementary School, under School District 61 (SD61), up until its closure.
In August 2022, the SD61 requested funding for a crossing guard at Macaulay Elementary School. The following motion was passed: That Council authorize funding $22,560 for the crossing guard services at Macaulay Elementary School for the 2022/2023 school year; and that the Township consider including funding for this service in its future budget processes as a recurring cost on a cost recovery basis.
The Township established a Memorandum of Understanding (MOU) with SD61 for the provision of crossing guards, which has functioned successfully. A copy of this MOU is attached.
Other local governments in the region have established comparable arrangements for crossing guard support:
• City of Victoria provides ongoing, inflation-adjusted annual funding to School District 61 for crossing guard services at seven elementary schools. In 2025, $109,140 was budgeted.
• District of Oak Bay funds crossing guards directly through School District 61. In 2025, Oak Bay contributed $22,560 to support two intersections serving École Willows Elementary.
• District of Saanich funds crossing guards through municipal grant allocations rather than a permanent operating budget line item.
• The Town of View Royal, in its 2025-2029 Financial Plan, budgeted $45,565 for a crossing guard program.
Within the Township, there are four public schools: Rockheights Middle School, Esquimalt High School, Macaulay Elementary School, and École Victor-Brodeur. The latter two schools welcome elementary students from kindergarten to grade five.
Current Request:
In November 2025, Directrice adjointe Madelaine Pepenel wrote to the Township of Esquimalt requesting support for a crossing guard at École Victor-Brodeur. She noted that:
• Student crossing guards operate from 8:20-8:40 a.m. and 2:30-3:00 p.m.
• Teachers can supervise no more than 15 minutes per week, limiting the school's ability to ensure consistent safety oversight.
• Students regularly move between two sites on Head and Lampson Streets, both busy corridors, during peak traffic periods.
Township Safety Improvements in the Area
Over the last several years, the Township has partnered with the CRD Ready Step Roll initiative and has implemented significant investments in road safety in the surrounding area with future improvements identified on Head Street in the short term as a part of the Active Transportation Network Plan. See below for a list of recent improvements:
2023/2024:
• Intersection Traffic Calming and Signal Removal
o Old Esquimalt and Head Street
• Sidewalk Upgrades:
o Old Esquimalt between Head and Lampson
• School Zone Pavement Markings:
o Old Esquimalt between Head and Aldebury - School Zone
2025:
• Sidewalk Bypass Zone
o Head at mid-block crossing
• Bollards
o Head at mid-block crossing
o Victor-Brodeur walkway
• Speed Reader Signs (2 per location):
o Old Esquimalt between Head and Aldebury - School Zone
• Concrete Median Islands with Stop Signs and Upgraded Pavement Markings:
o Old Esquimalt and Aldebury
2026:
• Lead Pedestrian Interval (signals) and Accessibility Ramps
o Esquimalt and Head Street
• Protected Bike Lanes
o Esquimalt Road Phase 1
• Multi-Use RRFB Crosswalk and Accessibility Ramps
o 848 Esquimalt Road
ANALYSIS:
Other local governments in the region have established comparable arrangements to support crossing‑guard programs in partnership with school districts. These examples illustrate that municipal participation in crossing‑guard funding varies across the region, with several municipalities providing either direct support or ongoing financial contributions.
Within Esquimalt, the Township has entered into an MOU with SD61 to support a crossing guard program at Macaulay Elementary School. The request from École Victor-Brodeur introduces an opportunity for Council to consider how crossing guard support is provided in the Township.
École Victor‑Brodeur has identified several factors contributing to its request:
• Teacher involvement in student‑led crossing programs is limited by collective agreement provisions.
• Traffic volumes on adjacent collector roads create busy conditions during morning and afternoon peak periods.
• Students regularly move between two school sites on Head Street and Lampson Street.
Although the Township has implemented several infrastructure improvements intended to enhance safety in the surrounding area, the school has indicated that challenges remain in operating a student‑only crossing‑guard program. Staff are seeking Council direction on whether to explore a model similar to the existing arrangement with Macaulay Elementary, consider alternative approaches, or determine that no further action is required.
OPTIONS:
Option 1 - Direct staff to draft an MOU with SD93 to include crossing guard services for École Victor-Brodeur (Staff Recommended)
Resolution: That Council directs staff to work with École Victor‑Brodeur to develop a Memorandum of Understanding outlining responsibilities, service levels, and costs for crossing guard support, with funding incorporated into the 2027 budget process.
Pros:
• Provides consistent adult supervision during peak traffic times.
• Aligns with the existing approach used for Macaulay Elementary School.
• Supports school-community partnerships and promotes road-user safety.
Cons:
• Increases ongoing operating costs for the Township.
• Requires staff capacity for contract development, administration, and oversight.
Option 2 - Refer the matter back to staff for additional information
Resolution: That Council refers the matter to staff to gather additional information and report back.
Pros:
• Provides opportunity to clarify costs, hours, staffing needs, and partnership implications.
Cons:
• Delays any decision or action.
• May prolong uncertainty for the school.
• Some staffing or budget planning timelines may be affected.
Option 3 - Decline the request
Resolution: That Council declines the request from École Victor‑Brodeur for crossing guard support at this time.
Pros:
• Avoids new operating costs for the Township.
• Maintains existing service levels and staffing commitments.
Cons:
• Does not address the challenges identified by the school.
• May result in continued reliance on student-only crossing programs.
• Could be perceived as inconsistent with past support for Macaulay Elementary.
COUNCIL PRIORITY:
Engage and Healthy Community
FINANCIAL IMPACT:
Costs will depend on final service hours, duration, and staffing model. As a reference point, the crossing-guard program at Macaulay Elementary School is budgeted at $28,392 for 2026. A similar cost is anticipated for École Victor-Brodeur, pending more detailed discussions.
COMMUNICATIONS/ENGAGEMENT:
Communications and engagement activities will depend on the option selected by Council. Staff will work with École Victor-Brodeur or other relevant parties, as appropriate, based on the direction provided. Any required agreements, budget considerations, or operational details will be coordinated and communicated in alignment with Council’s decision.
TIMELINES & NEXT STEPS:
If Council selects Option 1: Draft an MOU with SD93 (Staff Recommended):
• Spring-Summer 2026: Staff meet with École Victor‑Brodeur and SD93 to confirm service expectations, hours of coverage, and cost‑sharing model.
• Summer 2026: Staff draft an MOU with SD93.
• Fall 2026: Staff present the draft MOU and associated budget request to Council.
• 2027 Budget Process: Staff include the funding into the operating budget for implementation in the 2027 school year.
• Upon Budget Approval: The Township, SD93, and École Victor‑Brodeur proceed with the implementation of MOU.
If Council selects Option 2 - Refer for additional information:
• Spring 2026: Staff meet with École Victor‑Brodeur and SD93 to discuss further operational requirements, cost estimates, and potential partnership models.
• Summer 2026: Staff engage with SD93 and École Victor-Brodeur for supplementary details.
• Fall 2026: Staff provide an updated report to Council with refined options, costs, and considerations.
• Subsequent Steps: Dependent on Council direction at that time.
If Council selects Option 3 - Decline the request:
• Spring 2026: Staff notify École Victor-Brodeur of Council’s decision.
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. Email from Madelaine Pepenel, November 5, 2026.
2. MOU In Respect of the Provision of Crossing Guard Services. SD61 and the Township of Esquimalt. September 2023.