TOWNSHIP OF ESQUIMALT STAFF REPORT
MEETING DATE: December 15, 2025 Report No. EPW-25-018
TO: Council
FROM: Joel Clary, Director of Engineering & Public Works
SUBJECT: Active Transportation Network Plan Refresh and Esquimalt Road Phase 2 Update
RECOMMENDATION:
Recommendation
That Council direct staff to:
a. Implement the Active Transportation Network Plan utilizing the new priorities identified in Attachment 3 of this report as guidance;
b. Add a refresh of the Active Transportation Network Plan, including public engagement, for the next Council’s consideration as part of Council Priorities planning;
c. Proceed with detailed design engagement on Esquimalt Road Active Transportation and Underground Improvements - Phase 2, excluding the segment between Fraser Street and Admirals Road, and report back to Council with a What We Heard Report, anticipated in spring 2026; and
d. Continue to pause on design work on protected bike lanes on Esquimalt Road between Fraser Street and Admirals Road in consideration of the Esquimalt Road Urban Design Guidelines, City of Victoria watermain upgrade and the next Council’s priorities planning;
as described in Staff Report EPW-25-018.
Body
EXECUTIVE SUMMARY:
The purpose of this report is to provide Council with an update on the Active Transportation Network Plan, including a summary of completed projects and those still outstanding. Staff are seeking Council’s direction on the next set of priority projects, including additional opportunities identified in this report that extend beyond the current Active Transportation Network Plan. This report also includes an update on Esquimalt Road Active Transportation and Underground Improvements - Phase 2 and a request for direction on the detailed design engagement that is currently planned for early 2026.
BACKGROUND:
Esquimalt’s first Active Transportation Network Plan (ATNP) was received by Council in February 2022, after WATT Consulting Group was hired in October 2020 to complete the work. The ATNP guides active transportation improvements in the community. From the start of the project to the completion of the ATNP in February 2022, the following deliverables or milestones were completed:
• Baseline Condition Report - March 2021
• Public Engagement Round 1 - March to April 2021
• What We Heard Report - June 2021
• Plan Summary Report - August 2021
• Council Check-In - August 2021 (see staff report EPW-21-020 from August 23, 2021 COTW meeting)
• Public Engagement Round 2 - October to November 2021
• Active Transportation Network Plan (full version) - February 2022 (see staff report EPW-22-003 from the February 7, 2022 Council meeting)
• Active Transportation Network Plan - Plan Summary (condensed version) - March 2022
All of the documents produced as part of the above deliverables are available on the Township’s website at esquimalt.ca/activetransportation (note: this page is linked to EngagingEsquimalt.ca which shows the history of the ATNP development, including the documents produced as part this process).
The Township has made steady progress on delivering the plan since it was initiated in early 2022. The table in Attachment 1 summarizes the actions identified in the ATNP and provides corresponding status updates for each action.
To date, significant progress has been made on the ATNP actions, and some priority projects have been postponed (example: Old Esquimalt new sidewalk). There has also been interest expressed in projects that are not currently included in the ATNP as actions. Due to these changes, a $50,000 budget request was considered in the annual 2025 budget process to refresh the ATNP in 2026 with the support of a consultant. At the March 3, 2025 Council Meeting, Council approved the following motion regarding this:
“That Council direct staff to put a temporary hold on further design work on the Kinver/Swinford sidewalk project for the completion of the Active Transportation Network Plan refresh and subsequent Council discussion to determine the project’s priority level.”
The purpose of this report is to facilitate the requested Council discussion and seek direction on the next priority projects in the ATNP, including consideration of the Kinver/Swinford sidewalk, and to determine if a consultant is needed to support public engagement and refresh the ATNP. The upcoming 2026 budget process currently includes $50,000 for consultant help to refresh the ATNP.
Due to potential changes in active transportation priorities, staff are also seeking direction as part of this report on the next steps on Phase 2 of the Esquimalt Road Active Transportation and Underground Improvements project which is from Lampson Street to Canteen Road. Previous direction from Council came during the April 7, 2025 Council meeting through the following motion:
“That Council:
a. Receive the Esquimalt Road Active Transportation and Underground Improvements - Phase 2 What We Heard Report for information;
b. Designate Esquimalt Road as the priority corridor for east-west cycling facilities;
c. Direct staff to advance designs for a project on Esquimalt Road that includes:
i. Quick-build protected bike lanes between Joffre Street and Fraser Street; and
ii. Interim bike facilities between Admirals Road and Canteen Road, including required signal modifications at Nelson Street;
d. Direct staff to pause design work until 2026 on protected bike lanes on Esquimalt Road between Fraser Street and Admirals Road in consideration of an Active Transportation Network Plan priorities discussion with Council, Esquimalt Road Urban Design Guidelines, and City of Victoria watermain upgrade;
e. Direct staff to complete further analysis of asset renewals along the Esquimalt Road Phase 2 corridor in consideration of Council direction on active transportation elements; and
f. Direct staff to complete Traffic Orders in 2025 for proposed parking changes off Esquimalt Road;
as described in Staff Report EPW-25-005.”
Since the above direction from Council was given, staff have been coordinating with the City of Victoria and advancing designs for the segments of Phase 2 from Fraser Street to Lampson Street, and Admirals Road to Canteen Road. The City of Victora has changed the scope of their project from a major seismically restrained watermain upgrade to only replacing the service connections to redirect all flow from the 100+ year watermain to another existing watermain that is in better condition and is suitable to service the corridor. Ideally this work should still be coordinated with any other works on Esquimalt Road; however, the scale and overall impact of the work is much smaller than originally anticipated and could be done independently with minimal overlapping impact.
Staff originally anticipated detailed design engagement to occur late summer / early fall of 2025; however, due to competing priorities, this project has progressed more slowly than anticipated. Staff currently anticipate being ready for engagement on final detailed design on these segments at the end of January 2026. This would result in Council receiving a What We Heard Report in spring 2026 and construction contract award for consideration late spring / early summer, followed by construction starting in summer 2026. Staff are checking-in with Council to confirm that detailed design engagement should proceed, even with the updated timeline. For reference, attached in Attachment 2 are the current plans this will form the basis for engagement.
ANALYSIS:
Active Transportation Network Plan Refresh
To facilitate a discussion and obtain direction on next priority projects, staff developed a draft prioritized list of projects for pedestrian, cycling, and intersection improvements for Council’s consideration. This draft list and corresponding short-term priorities maps are included in Attachment 3.
The priorities were developed from a high-level review, in consideration of:
• projects identified in the current ATNP;
• ultimate networks identified in the current ATNP;
• known areas of concern;
• observed desired routes;
• current use;
• current condition;
• potential demand;
• vehicle volumes; and
• staff’s recommendations.
Staff populated a longer list than typically shown, to provide additional options for Council to consider. The focus should be on setting short-term priorities, recognizing that priorities change over time and a refresh of the priorities will be needed before proceeding with medium- and long-term priorities. For reference, as part of the annual budget process, staff have been aiming to include at least one of each type of project (pedestrian, cycling, and intersection) every year, which may included phases spread out over multiple years.
Esquimalt Road Active Transportation and Underground Improvements Project - Phase 2
Staff recommend proceeding with detailed design engagement in early 2026 on the segments between Fraser Street and Lampson Street, and Admirals Road and Canteen Road. To date, significant effort has gone into this design and proceeding with engagement will continue this process and inform the detailed aspects of the project. Connecting Phase 1, which currently ends between Lampson Street and Joffre Street, to Fraser Street allows for key connections in Esquimalt’s core business area. Scope of work Included in this section (Lampson Street to Fraser Street) is shown in the designs in Attachment 2 and includes:
- RRFB (rectangular rapid flashing beacons) conversion at Fernhill Road and Esquimalt Road
- RRFB multi-use crossing at Fraser Street and Esquimalt Road
- New watermain services to abandon end of life watermain
- Protected bike lanes from Lampson to Fraser
- Select underground utility renewals (sewer/storm)
- Select milling and paving
- New streetlighting where warranted
- Pavement markings and signage
The previous direction from Council for the segment west of Admirals Road was to advance designs that include:
ii. Interim bike facilities between Admirals Road and Canteen Road, including required signal modifications at Nelson Street;
This is reflected in the current designs in Attachment 2, which shows no centre medians being added and 12 parking spaces being retained. The design west of Admirals also includes:
- RRFB at Constance Avenue and Esquimalt Road
- Full traffic signal at Nelson Street and Esquimalt Road (development contributions)
- RRFB at Sturdee Street and Esquimalt Road
- RRFB Conversion at St Paul’s Place and Esquimalt Road
- Protected bike lanes west of Admirals (medians separation included)
- Centre turn lanes in select locations
- Select underground utility renewals (sewer/storm)
- Select milling and paving
- New streetlighting where warranted
- Pavement markings and signage
One aspect that staff recommend gathering public feedback on is if the addition of protected barriers/conflict paint for bike lanes and new/upgraded RRFB crosswalks west of Admirals aligns with the interim treatment expectations, or if the design should exclude these and provide only buffered/painted bike lanes, lane realignment and a new signal at Nelson Street and Esquimalt Road. In previous projects, the feedback gathered at the detailed design stage has been helpful to fine tune the design and align expectations.
Completing this engagement now would allow staff to finalize designs, while still giving Council the opportunity to decide when construction should occur. This is an efficient use of resources, because the design work is well underway.
The remaining segment between Fraser Street and Admirals Road is on hold per the previous direction from Council:
Direct staff to pause design work until 2026 on protected bike lanes on Esquimalt Road between Fraser Street and Admirals Road in consideration of an Active Transportation Network Plan priorities discussion with Council, Esquimalt Road Urban Design Guidelines, and City of Victoria watermain upgrade;
Staff recommend continuing to pause this work in consideration of the Esquimalt Road Urban Design Guidelines, and coordination with City of Victoria, while keeping this project as a short-term priority project, following the other segments in Phase 2 (Lampson to Fraser and Admirals to Canteen).
Environmental Impact
Active transportation plays a significant role in mitigating climate change as the transportation sector accounts for 33% of the community greenhouse gas (GHG) emissions. Completing bike lanes and pedestrian improvements on Esquimalt Road addresses high priority projects identified in the ATNP and advance the objectives in the Climate Action Plan.
OPTIONS:
The options for this report provided below are broken into two sections: ATNP Refresh and Esquimalt Road Phase 2. Included in the options for Council’s consideration are draft motions.
Active Transportation Network Plan Refresh
Option 1 - Implement staff provided list of priorities (recommended)
This option utilizes the updated priorities in Attachment 3 that are based on the considerations identified in the Analysis section of this report. This update provides sufficient short-term priorities for pedestrians, cyclists, and intersection improvements to extend the life of the current ATNP until such time as a full refresh can be completed. As part of this option, staff recommend including direction to consider a future refresh of the ATNP, including public engagement, as part of the next Council Priorities Plan.
Draft Motion: That Council direct staff to:
a. Implement the Active Transportation Network Plan utilizing the new priorities identified in Attachment 3 of this report as guidance; and
b. Add a refresh of the Active Transportation Network Plan, including public engagement, for the next Council’s consideration as part of the Council Priorities Plan.
Option 2 - Implement an amended list of priorities based on Council feedback and direction
This option utilizes a list of priorities based on Council feedback during the December 15, 2025 Council meeting. Staff recommend the list of priorities to include at least 4-5 projects for each category (pedestrians, cyclists, and intersections), in order to provide sufficient short-term priorities until a full refresh of the ATNP can be included. Similar to Option 1, staff recommend including direction to consider a future refresh of the ATNP, including public engagement, as part of the next Council Priorities Plan.
Draft Motion: That Council direct staff to:
a. Implement the Active Transportation Network Plan utilizing amended priorities provided by Council as guidance; and
b. Add a refresh of the Active Transportation Network Plan, including public engagement, for the next Council’s consideration as part of the Council Priorities Plan.
Option 3 - Complete a refresh of the ATNP, including public engagement
This option utilizes consultant support at an estimated cost of $50,000 to refresh the ATNP based on public engagement. This aligns with the approach taken in the current ATNP, that included public engagement. Refreshing the plan updates the entire document and not just priority projects. The level of effort will be less than the original ATNP was, as the work will build off of this plan, instead of starting fresh. Staff originally recommended this option as part of the 2025 budget process, but after compiling and prioritizing the projects in Attachment 3, staff feel that a full refresh can wait, as long as the short-term priorities are updated soon.
If Council proceeds with this option, Council should provide direction on any projects they want staff to proceed with in 2026, if any, while the plan is being refreshed. In this scenario, staff recommend continuing with current priorities through the 2026 budget process, including a new sidewalk on Kinver Street (currently on hold), review and changes to the Devonshire Road and Fairview Road intersection, and ongoing traffic calming improvements.
Draft Motion: That Council direct staff to:
a. Complete public engagement and refresh the Active Transportation Network Plan, at a timeline directed by Council; and
b. Pause implementation of pedestrian priority projects
An alternate option for consideration is for Council to provide direction to pause all or certain aspects of the ATNP, while the refresh is underway.
Option 4 - That Council provide alternative direction to staff
Direction in this option is to be provided by Council.
Option 5 - That Council request further information from staff
In this option, Council could request further information from staff before providing direction on the ATNP refresh and next priority projects.
Esquimalt Road Active Transportation and Underground Improvements Project - Phase 2
Option 1 - Proceed with detailed design engagement, excluding the segment between Fraser Street and Admirals Road (recommended)
Staff recommend proceeding with this option as it continues to build on the work completed to date and aligns with the previous direction from Council. Engagement is anticipated to begin in late January in this scenario. Council would have another opportunity to provide direction on proceeding when the What We Heard report is received.
As part of this option, staff are seeking updated direction from Council on the segment between Fraser Street and Admirals Road. Staff recommend continuing to pause on design works at this time. For reference, the Esquimalt Road Urban design Guidelines are currently anticipated to start and continue throughout 2026, pending budget approval.
Draft Motion: That Council direct staff to:
c. Proceed with detailed design engagement on Esquimalt Road Active Transportation and Underground Improvements - Phase 2, excluding the segment between Fraser Street and Admirals Road, and report back to Council with a What We Heard Report, anticipated in spring 2026.
d. Continue to pause on design work on protected bike lanes on Esquimalt Road between Fraser Street and Admirals Road in consideration of the Esquimalt Road Urban Design Guidelines, City of Victoria watermain upgrade and the next Council Priorities Plan.
Option 2 - That Council provide alternative direction to staff
Direction in this option is to be provided by Council. One consideration may be to split the segments and proceed on different timelines. For Example, Council could direct staff to proceed engagement on only the segment between Lampson Street and Fraser Street, and to pause on the remaining segments in Phase 2.
Option 3 - That Council request further information from staff
In this option, Council could request further information from staff before providing direction on the next steps of Phase 2, which would pause the project until the information and new Council direction is provided.
Staff Recommendation
1. That Council direct staff to:
a. Implement the Active Transportation Network Plan utilizing the new priorities identified in Attachment 3 of this report as guidance;
b. Add a refresh of the Active Transportation Network Plan, including public engagement, for the next Council’s consideration as part of the next Council Priorities Plan;
c. Proceed with detailed design engagement on Esquimalt Road Active Transportation and Underground Improvements - Phase 2, excluding the segment between Fraser Street and Admirals Road, and report back to Council with a What We Heard Report, anticipated in spring 2026; and
d. Continue to pause on design work on protected bike lanes on Esquimalt Road between Fraser Street and Admirals Road in consideration of the Esquimalt Road Urban Design Guidelines, City of Victoria watermain upgrade and the next Council Priorities Plan;
as described in Staff Report EPW-25-018.
COUNCIL PRIORITY:
Engaged & Healthy Community - Implement Active Transportation Network Plan
Housing - Parking Strategy
Climate Resilience & Environmental Stewardship - Climate Action Plans
FINANCIAL IMPACT:
Budget amounts for the next short-term priority projects will be updated as part of the 2026 budget process.
For Esquimalt Road Phase 2, the 2025-2029 Financial Plan identifies a $3,729,597 budget (originally $3,750,000) for Phase 2 which is based on the following breakdown:
o Design = $229,597 (reflects costs incurred of $20,403 of the original budget of $250,000)
o Active Transportation Improvements = $1,500,000
o Utility Repairs = $1,000,000
o Road Repairs = $1,000,000
Additional development contributions for signal improvements at Nelson Street and Esquimalt Road are expected to be $500,000, bringing the total budget to $4,229,597.
Staff plan to refine the design to fit within this budget amount. Detailed design engagement will be needed to identify the final scope of work and any refinements that are necessary. Additional funding may be required depending on the desired outcome of the Esquimalt Road Urban Design Guidelines and proposed upgrades for Esquimalt Road Phase 2 - Fraser Street to Admirals Road.
COMMUNICATIONS/ENGAGEMENT:
Engagement initiatives completed as part of the development of the ATNP are identified in the Background section of this report and include two rounds of online surveys for public feedback.
Engagement on Esquimalt Road Phase 2 was completed through an online survey that opened on November 21, 2024. The survey was left open until January 27, 2025, to ensure sufficient time to complete the survey. The survey received 657 responses during that time. In addition, two Open Houses occurred on November 28, 2024 and January 16, 2025. Over 250 people are estimated to have attended the Open Houses. Staff also held 15 one-on-one meetings with businesses to gather specific feedback from the business community perspective.
Any updated direction directed by Council on the ATNP priority projects and/or Esquimalt Road Phase 2, will be updated on the Township’s website at esquimalt.ca/activetransportation.
TIMELINES & NEXT STEPS:
Proceed with any design and engagement works that Council direct. Any updates directed from Council will be revised in the 2026 budget process.
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. Attachment 1 - 2022 ATNP Actions - Current Status
2. Attachment 2 - Esquimalt Road Phase 2 - Current Design Drawings
3. Attachment 3 - ATNP 2025 Proposed Actions Lists and Maps