TOWNSHIP OF ESQUIMALT STAFF REPORT
MEETING DATE: January 19, 2026 Report No. DEV-25-055
TO: Committee of the Whole
FROM: Bill Brown, Director of Development Services
SUBJECT: Community Health Needs Assessment and Community Healthcare System Support Playbook
RECOMMENDATION:
Recommendation
That the Committee of the Whole; upon consideration of the recommendations of the 2019 - 2025 Esquimalt’s Health Journey study (Appendix “A”) which updates the Esquimalt Community Health Needs Assessment May 21, 2019 (Appendix “B”), and the Community Healthcare System Support Playbook (Appendix “C”), recommend to Council a series of actions that they wish to implement and that staff be directed to prepare an impact assessment for the suite of proposed actions for consideration by Council.
Body
EXECUTIVE SUMMARY:
Both the 2019 - 2025 Esquimalt’s Health Journey study (Appendix “A”) (which needs to be read in conjunction with the Esquimalt Community Health Needs Assessment (Appendix “B”)), and the Community Healthcare System Support Playbook (Appendix “C”), contain numerous recommendations that may help improve the health outcomes of residents of Esquimalt and help attract and retain more medical professionals including medical doctors, nurses, nurse practitioners and other allied health professional. While the 2019 - 2025 Esquimalt’s Health Journey deals specifically with Esquimalt (and to a limited extent surrounding municipalities) and contains Esquimalt specific recommendations; the Community Healthcare System Support Playbook is aimed at all British Columbia with recommendations applicable across the province. By selecting and prioritizing recommendations from these two documents, Council, based on a recommendation from the Committee of the Whole, will be able to execute a coordinated series of actions aimed at attracting medical doctors and other allied medical professionals to Esquimalt to help meet the medical needs of its residents and hence enhance health outcomes.
BACKGROUND:
In 2019, the Fraternal Order of Eagles contracted the Pepler Consulting Group to conduct a Community Health Needs Assessment for Esquimalt, including CFB Esquimalt, Kosapsum and Songhees Nations, and Vic West. This study, which was published in May 2019, made several key recommendations found on pages 6 and 7 of the study (Appendix “B”). Many of the recommendations were not executed, in large part because of the onset of the COVID - 19 Pandemic in early 2020, but also due to the lack of staff resources. Following the Pandemic, Council instructed staff to do a follow-up study, primarily to measure the impact of the Pandemic on the health of Esquimalt’s Residents. Given their familiarity with Esquimalt and the previous Community Health Needs Assessment, the Pepler Consulting Group was engaged to do the follow-up study. This study featured a more robust consultation process that included key informant interviews, household surveys, and several community kiosks. The findings, found on page 6 of the study, highlighted the following:
- “Walk-in clinic closures and the shortage of family doctors has forced residents into emergency department or private subscription-based care models”
- “Primary-care access/attachment remains pressured…”
- “Limited availability of aging-friendly housing with few downsizing and accessibility options.”
- “Mental health burden stays above British Columbia…”
- “When people were asked about what it is about mental health that was a challenge for them or their family, almost 50% of all comments mentioned poor or no service availability…”
- “Caring for family members was frequently commented on, especially challenges associate with time, service availability, access, housing, disability and financial.”
- “Aging-in-place needs are escalating…”
- “Housing repair/affordability and accessibility barriers constrain health routines and connection.”
- “Post COVID, many respondents talked about jobs or job security, or balancing income and expenses, especially the challenge of being to afford necessities.”
The other important document to be released after the Pandemic related to the role of local governments in the Healthcare system was the Community Healthcare System Support Playbook. This document outlines a suite of actions that communities can undertake to respond to the needs of healthcare and emergency personnel. Included in its many actions are actions related to density bonusing - actions directly related to the “Doctor Density Bonusing” project identified in the Council Priorities Plan 2023-2026. Other actions include:
- Affordable housing,
- Childcare availability and cost,
- Pet care availability and cost,
- Cost of living generally,
- Time spent commuting,
- Cost of transportation, parking, and lack of options outside of business hours,
- Cost of education and student loans,
- Long hours, overtime, and burnout,
- A lack of a sense of community support,
- Clinic space availability and lease costs,
- Cost of fitting out a clinic,
- Cost of staff and administration loads,
- Technology limits,
- Low availability of education spaces to train workers.
These two important documents provide Council with a broad assessment of the current health care system and health status of the resident population and a suite of proposed actions that Council can implement to help address the issues identified.
Chronology
• May 2019 - Esquimalt Community Health Needs Assessment Final Report published.
• March 11, 2020 - COVID-19 declared a global pandemic.
• May 5, 2023 - World Health Organization states that COVID-19 no longer qualifies as a global emergency.
• September 25, 2024 - Township enters into a Professional Services Agreement with Pepler Consulting Group.
• October 22, 2025 - 2019 to 2025: Esquimalt’s Health Journey From Challenges to Wellness: 2025 - 2030 study received.
ANALYSIS:
The findings of the 2019-2025 Esquimalt’s Health Journey provide Council with a solid baseline of information related to the current health status of Esquimalt’s residents. In addition, it provides a number of recommendations to help respond to the health issues faced by the residents. These recommendations are based on a careful analysis of the data collected by the study and represent the latest thinking on how to respond to the health needs of Esquimalt’s residents. In addition, the Community Healthcare System Support Playbook provides numerous recommendations for actions to help communities support their health care workers. In combination, the recommendations of these two reports provide the Committee of the Whole with a broad range of actions to consider in their subsequent deliberations and recommendations to Council for consideration. Once Council has verified the recommendations it wishes to pursue, staff will prepare an impact assessment that will form the basis of a community health care strategy for Council’s consideration.
ECONOMIC DEVELOPMENT COMMENTARY
The findings of the 2019-2025 Esquimalt’s Health Journey and the Community Healthcare System Support Playbook have clear intersections with the Township’s Economic Development Action Plan (2023-2025) and Council’s priority to advance Doctor Density Bonusing. From an economic development perspective, health access is not only a quality-of-life issue but a strategic economic factor that influences labour force attraction, business retention, and overall community competitiveness.
Health as Economic Infrastructure:
Reliable healthcare access underpins a stable and productive local workforce. Limited family doctor availability and mental health support contribute to worker absenteeism, recruitment challenges, and diminished business confidence. Addressing these gaps therefore strengthens Esquimalt’s economic foundation and livability.
Doctor Density Bonusing as Workforce Attraction:
Incentivizing medical offices through density bonusing and related planning tools parallels existing development incentive programs. These measures support the Township’s business-friendly reputation while positioning Esquimalt as an attractive base for medical and allied health professionals. The initiative complements broader revitalization and housing strategies along Esquimalt Road and within key commercial corridors.
Business Retention and Community Vitality:
Local employers consistently identify access to healthcare and childcare as key determinants of employee retention. Integrating healthcare access into business outreach and future BRE programming can help monitor community resilience and inform regional advocacy efforts through partnerships such as the South Island Prosperity Partnership (SIPP).
Shared Constraints and Local Opportunities:
Barriers faced by healthcare practitioners-such as clinic lease rates, fit-out costs, and administrative load-mirror the broader challenges of small business operators. Economic Development can collaborate with Development Services and local landlords to explore shared workspace models or targeted revitalization incentives that reduce these barriers and attract new medical service providers.
Place Branding and Community Wellbeing:
Esquimalt’s refreshed brand and communications channels provide an opportunity to promote the community’s commitment to wellness and belonging. Highlighting positive health and community initiatives aligns with the “Place to Be” identity and reinforces Esquimalt’s appeal to residents, investors, and skilled professionals alike.
Regional and Indigenous Partnerships:
Health equity and workforce resilience are shared regional priorities. Collaboration with the Songhees and Kosapsum Nations, CFB Esquimalt, and SIPP can strengthen both healthcare outcomes and economic reconciliation objectives while supporting new training and employment pathways within the local health sector.
OPTIONS:
1. “That the Committee of the Whole; upon consideration of the recommendations of the 2019 - 2025 Esquimalt’s Health Journey study (Appendix “A”), and the Community Healthcare System Support Playbook (Appendix “C”) as attached to staff report DEV-25-055, recommend to Council a series of actions that they wish to implement and that staff be directed to prepare an impact assessment for the suite of proposed actions for consideration by Council at a future date.”
2. Alternative Draft Motion: That Council receives staff report DEV-25-055 for information.
COUNCIL PRIORITY:
1) Health Needs Assessment.
2) Doctor Density Bonusing
FINANCIAL IMPACT:
Depending on which actions Council wishes to pursue, there may be a need to hire consultants to undertake the work. This will require budget approval.
COMMUNICATIONS/ENGAGEMENT:
There was extensive public consultation associated with the 2019 - 2025 Esquimalt’s Health Journey study (Appendix “A”). This included focus groups, household surveys, and community kiosk surveys. The Community Healthcare System Support Playbook (Appendix “B”) was prepared for a non-profit group by a consultant and was not a Township initiative.
TIMELINES & NEXT STEPS:
• Council identifies which recommendations they wish to prioritize for action.
• Staff prepare an impact assessment for the actions identified by Council.
• Based on the impact assessment, Council amend the Council Priorities Plan as required.
• If necessary, Council provide budget resources.
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:
List all items attached to the Staff Report
1. Appendix “A” 2019 - 2025 Esquimalt’s Health Journey study
2. Appendix “B” Esquimalt Community Health Needs Assessment
3. Appendix “C” Community Healthcare System Support Playbook,
4. Appendix “D” 2019 - 2025 Esquimalt’s Health Journey presentation
5. Appendix “E” Community Healthcare System Support Playbook presentation