TOWNSHIP OF ESQUIMALT STAFF REPORT
MEETING DATE: December 15, 2025 Report No. DEV-25-061
TO: Council
FROM: Jakub Lisowski, Planner
SUBJECT: Official Community Plan Project - Adoption of Bylaw
RECOMMENDATION:
Recommendation
That Council adopt Official Community Plan Bylaw, 2018, No. 2922, Amendment Bylaw, 2025, No. 3176.
Body
EXECUTIVE SUMMARY:
Recent amendments to the Local Government Act require that the Official Community Plan (OCP) be amended by December 31, 2025. In addition, Council directed staff to amend the Official Community Plan Bylaw based on comments provided by the Committee of the Whole at the September 15, 2025, workshop. Finally, Council made three amendments at second reading on November 3, 2025. The proposed Amendment Bylaw No. 3176 is attached as Appendix “A”. A table summarizing the proposed amendments is attached as Appendix “D”.
BACKGROUND:
The following key amendments are being made to the OCP:
• Making necessary amendments to be compliant with recent amendments to the Local Government Act related to the most recent Housing Needs Report.
• Amending the Commercial/Commercial Mixed-use policies related to height.
• Making housekeeping amendments as outlined in Appendix “D” of this report.
In addition, the Committee of the Whole recommended at their September 15, 2025, meeting that Council amend the Official Community Plan Bylaw, 2018, No. 2922, as follows:
• Restrict the Floor Area Ratio (FAR) of townhomes to 0.7 with no density bonusing provisions.
• Allow commercial development in all residential areas throughout the Township, with appropriate guidelines.
Council gave 1st reading and 2nd reading as amended to the amending Bylaw at the November 3rd Council meeting. The amendments at 2nd reading were as follows:
• Delete the word “Average” and remove the brackets around the word “Median”, so that the title of Figure 3 of the Bylaw reads, “Esquimalt Population by Median Age”.
• Replace the words “Commercial/Commercial Mixed-Use - Tall” with “Sussex/Saunders Mixed-Use” throughout the text of the OCP and make corresponding amendments to Schedule B - Proposed Land Use Designation Map to reflect this change.
• By modifying section 4.7 as follows: “Policies identifying a certain number of storeys should be considered guidelines and not regulations for height. Council may consider development of proposals that exceed these guideline heights where, in its judgement, the proposal advances other objectives and policies of this Official Community Plan, as reflected through a zoning amendment. A proposal that exceeds the storey guidelines should not be considered consistent with the OCP for the purposes of Section 464(3)(b) of the Local Government Act.”
On November 17, 2025, Council rescinded 2nd reading and amended section 4.7 as follows before giving the bylaw 2nd reading anew as amended:
• Amend Policy 4.7 to read “Policies identifying a certain number of storeys should be considered as guidelines and not regulations for height. Council may consider development proposals that exceed these guideline heights (without amendment of the OCP) where, in its judgment, the proposal advances other objectives and policies of this OCP, as reflected through a zoning amendment, and Council is satisfied that one or more opportunities for public engagement have been provided”.
The final proposed version of the OCP, with amendments included, is found in Appendix “B”. A Track Changes version of the OCP is found in Appendix “C”. Staff have prepared a table that describes the proposed changes in Appendix “D”. This table can be read together with the Track Changes version of the OCP in Appendix “C” to better understand the proposed changes.
Chronology:
• November 30, 2023: Bill 44 Housing Statutes (Residential Development Act) received Royal Assent.
• September 23, 2024: As part of the Council Priorities Plan mid-term refresh, Council instructed staff to arrange for further in-depth discussion of the OCP.
• October 21, 2024: The Committee of the Whole recommended that Council direct staff to initiate Options 1, 2, and 3 for the OCP Recalibration.
• October 28, 2024: Council directed staff to initiate Options 1, 2, and 3 for the OCP Recalibration.
• November 25, 2024: Housing Needs Report completed and approved by Council.
• May 2023 - June 2025: Review of DPA Guidelines.
• June 16, 2025: The Committee of the Whole recommended that Council direct staff to endorse the draft Project Sign-off and proceed with the OCP Recalibration.
• June 17, 2025: The Advisory Planning Commission recommended that Council proceed with the OCP Recalibration.
• July 7, 2025: Council directed staff to proceed with the OCP Recalibration.
• July - August 2025: Stakeholder and public engagement.
• July 8, 2025: Individual letters sent to stakeholders identified in Appendix “F”.
• July 21, 2025: Individual letters sent to Kosapsum First Nation and Songhees First Nation.
• July 28, 2025: Open house at Esquimalt Recreation Centre.
• July 31, 2025: Open house table at Esquimalt Farmers’ Market.
• July 28 - August 3, 2025: Online open house.
• September 10, 2025: The Design Review Committee reviewed and provided comments on the draft DPA Guidelines of the OCP.
• September 15, 2025: The Committee of the Whole staff directed to amend the Official Community Plan Bylaw.
• September 16, 2025: Presentation of draft OCP to Advisory Planning Commission.
• November 3, 2025: Council gave 1st and 2nd readings to the OCP Bylaw, with amendments.
• November 17, 2025: Council rescinded 2nd reading to the OCP Bylaw and gave 2nd reading with one revised amendment.
• December 1, 2025: Council held a Public Hearing and gave 3rd reading to the OCP Bylaw.
ANALYSIS:
In 2023, the provincial government mandated through amendments to the Local Government Act that all Official Community Plans must:
• Through statements and map designations, provide for at least the 20-year total number of housing units required to meet anticipated housing needs as identified in the most recent Housing Needs Report.
• Include housing policies respecting each class of housing needs required to be addressed in the most recent Housing Needs Report.
Furthermore, the amendments require that Council must adopt an OCP that includes statements and maps in accordance with the above by December 31, 2025. The proposed amendments to the OCP meet the statutory requirements noted above. In addition, a suite of housekeeping amendments is proposed. Appendix “D” contains a table that summarizes all proposed amendments. These proposed amendments do not materially change the use and density provisions in the OCP. A more comprehensive review of the OCP will commence in 2026. The comprehensive review will particularly focus on use and density as well as new rules related to the use of bonus density.
OPTIONS:
1. That Council adopt Official Community Plan Bylaw, 2018, No. 2922, Amendment Bylaw, 2025, No. 3176.
2. That Council provide alternate direction.
COUNCIL PRIORITY:
The Official Community Plan Recalibration is identified as a project under the “Housing” priority in the Council Priorities Plan 2023-2026.
FINANCIAL IMPACT:
The budget for this project was $10,000 and a total of $12,700 has been expended for consulting related to stakeholder engagement.
COMMUNICATIONS/ENGAGEMENT:
A communications plan was developed in collaboration with a consultant to guide public engagement for the OCP amendment process. The plan aimed to ensure transparency, encourage participation, and gather feedback from a broad range of stakeholders.
Engagement Activities
The following initiatives were implemented to inform and engage the community:
• A summary of proposed changes was circulated to various groups and organizations.
• Direct email notifications were sent to individuals who subscribed to receive updates on OCP-related projects.
• Additional outreach emails were sent to local Esquimalt businesses.
Public Events
• An in-person open house was held at the Esquimalt Recreation Centre.
• A staffed information booth was set up at the Esquimalt Farmers’ Market.
• An online open house was hosted to provide virtual access to project materials and feedback opportunities.
Digital Communication
• Project information was posted on the Township’s website and the Engaging Esquimalt platform.
• The OCP project was featured in three separate Township event email campaigns.
• Social media posts were published on Facebook, Instagram, and LinkedIn to broaden reach and visibility.
Traditional Media
• News releases were issued to local media outlets.
• An article outlining the proposed changes appeared in the summer edition of The Current newsletter.
• Posters and digital signage were displayed at various Township facilities to promote awareness.
Public Access to Documents
• The proposed amendments were made available for public inspection at Municipal Hall.
The engagement process was designed to be inclusive and accessible, utilizing a mix of in-person, digital, and traditional communication channels. Feedback collected through these initiatives will inform us of the next steps in the OCP amendment process.
TIMELINES & NEXT STEPS:
• Adoption of the OCP Bylaw concludes the Official Community Plan Recalibration Project.
• Council will receive a budget request in 2026 to begin the 2028/9 OCP update project.
REPORT REVIEWED BY:
1. Bill Brown, Director of Development Services, Reviewed
2. Deb Hopkins, Director of Corporate Services, Reviewed
3. Ian Irvine, Director of Finance, Reviewed
4. Dan Horan, Chief Administrative Officer, Concurrence
LIST OF ATTACHMENTS:
1. Appendix “A” Amendment Bylaw No. 3176
2. Appendix “B” Official Community Plan Bylaw - Proposed Amendments Incorporated into the Official Community Plan
3. Appendix “C” Official Community Plan Bylaw - Track Changes version
4. Appendix “D” Table describing proposed changes to Official Community Plan