TOWNSHIP OF ESQUIMALT STAFF REPORT
MEETING DATE: September 29, 2025 Report No. DEV-25-024
TO: Councill
FROM: Kirsten Dafoe, Planner II and Bill Brown, Director of Development Services
SUBJECT: Rezoning Application - 922 Forshaw Road
RECOMMENDATION:
Recommendation
That Council give first, second, and third reading, and adopt Zoning Bylaw, 1992, No. 2050, Amendment Bylaw, 2025, No. 3164.
Body
EXECUTIVE SUMMARY:
The applicant is requesting a change in zoning from RS-6 [Single Family DADU Residential] to RS-4 [Single Family Bed and Breakfast Residential]. This change is required to accommodate the proposed 2 room bed and breakfast within the existing single-family dwelling. Pursuant to Section 464(3) of the Local Government Act, the Township is prohibited from holding a public hearing for this rezoning application.
Evaluation of this application should focus on issues related to land use, fit with the neighbourhood, parking, and consistency with the overall direction contained within the Official Community Plan.
Staff is supportive of the application, as the proposal is for a use within an existing Single Family Dwelling which is consistent with the uses and densities anticipated in the Low Density Residential Land Use Designation.
BACKGROUND:
Relevant Policy:
Official Community Plan Bylaw, 2018, No. 2922
Zoning Bylaw, 1992, No. 2050
Local Government Act
Short-Term Rental Accommodations Act (BC, 2023)
Parking Bylaw, 2025, No. 3089
Development Application Procedures and Fees Bylaw, 2012, No. 2791
Chronology:
• March 10, 2025 - Rezoning application received
• May 20, 2025 - Advisory Planning Commission
Advisory Body Recommendations:
The Advisory Planning Commission commented that
• The proposal fits the neighbourhood and supports the Official Community Plan objective 5.5 to enable aging in place.
The Advisory Planning Commission recommends to Council that the rezoning application to authorize the proposed bed and breakfast use, to be located at 922 Forshaw Road be approved as it is appropriate to the location and does not pose significant difficulties.
Referral Comments:
The application was circulated internally to Building Inspections, Engineering Services, Parks, and Economic Development. No concerns were raised.
ANALYSIS:
The purpose of the application is to rezone a parcel containing a single-family dwelling into a zone that would accommodate a bed and breakfast use within the existing dwelling. The proposed rezoning is consistent with the Official Community Plan and the existing residential component to be retained accounts for more than half of the gross floor area of the building. Pursuant to Section 464(3) of the Local Government Act, the Township is prohibited from holding a public hearing for this rezoning application.
A bed and breakfast use is distinct from a short-term rental use. The Township does not allow short term rentals, nor does it allow renting of any part of a residential dwelling for a period of less than one month unless such accommodation operates on a property zoned for the use.
OCP Analysis:
The proposed rezoning is consistent with the Official Community Plan.
OCP Section 5.1 states an objective to “support expansion of housing types within Esquimalt while addressing concerns such as tree protection, parking, traffic, noise, effects on neighbouring properties, and neighbourhood character.” It includes policies to:
• “Recognize short-term accommodation use as appropriate within designated residential land use areas only where appropriate zoning has been sought and secured.”
• “Support the development of a variety of housing types and designs to meet the anticipated housing needs of residents.”
Section 5.5 Age-friendly Housing states a policy to “Support and facilitate the development of multi-generational housing, including in medium and high-density residential developments.”
Section 11.7 Public Parking states a policy “New developments should meet the needs of the land use designation and bylaws to achieve onsite parking or have variances supported by a parking study.”
Section 15.2.3 Neighbourhood Design states a policy to “reinforce landscaping as a character defining element. Retain and augment mature landscaping and trees where possible.”
Section 16.1 Economic Development states a policy to “Recognize the value of locally owned and small businesses.”
Zoning Analysis:
Floor Area Ratio, Lot Coverage, Height, and Setbacks: The current RS-6 zone and the proposed RS-4 zone both contain the same provisions with respect to floor area ratio, lot coverage, height, and setbacks. The existing dwelling complies with these regulations. The application for rezoning is to allow a Bed and Breakfast use and does not propose renovations or additions to the existing dwelling unit.
Bed and Breakfast Provisions: The applicant is proposing to provide 2 rooms for Bed and Breakfast guests. The RS-4 zone allows a maximum of 3 rooms to be provided for guests. The operation of the proposed Bed and Breakfast will be required to meet other provisions of the RS-4 zone, including that no more than 6 transient guests shall be accommodated (not including children who share a room with an adult), and that no room shall be rented to the members of one Family for a continuous period of more than 2 weeks.
Parking Analysis:
Number of Spaces: The applicant is proposing to provide 3 off-street parking spaces to service the single-family dwelling and bed and breakfast uses. Of these spaces, 2 are proposed to be of standard size and 1 is proposed to be a small car space. This parking provision is consistent with Parking Bylaw, 2025, No. 3089, provided that no more than 2 sleeping rooms are used for the bed and breakfast use. If a third sleeping room is added to the bed and breakfast use in the future, a fourth parking space would need to be added to the site.
Configuration of Spaces: The applicant is proposing to provide all 3 parking spaces in a tandem (stacked) configuration within the existing driveway. Because Parking Bylaw 2025, No. 3089 does not allow such a configuration, Amendment Bylaw, 2025, No. 3164 includes a clause to allow parking to be provided in a tandem (stacked) row of not more than three (3) Parking Spaces. If a third sleeping room is added to the bed and breakfast use in the future, the additional required parking space would not be allowed to be added to the tandem (stacked) configuration and would need to be provided with standard access.
Because the Parking Bylaw requires that each parking space is provided with access from an adjacent maneuvering area/aisle, the existing driveway could only be considered to contain one parking space if the Amendment did not allow the stacked (tandem) layout. One parking space would not meet the minimum required for the uses. If a stacked (tandem) layout were not to be allowed, the applicant would need to reconfigure the off-street parking arrangement to accommodate additional spaces. Reconfiguration to achieve this would likely require the removal of mature landscaping.
OPTIONS:
1. That Council give first, second, and third reading, and adopt Zoning Bylaw, 1992, No. 2050, Amendment Bylaw, 2025, No. 3164.
2. That Council postpone consideration of Amendment Bylaw No. 3164 pending receipt of additional information.
3. That Council defeat Amendment Bylaw No. 3164.
COUNCIL PRIORITY:
Diversified & Thriving Economy
Housing
FINANCIAL IMPACT:
There are no financial implications associated with the proposal.
COMMUNICATIONS/ENGAGEMENT:
One sign indicating that the property is under consideration for a change in zoning has been installed on the Forshaw Road frontage. This sign has been updated to display the date of consideration of First Reading.
The applicant held a public information session on May 15, 2025; the notice for which was mailed to owners and occupants of properties within 100m of the property. Staff confirm that the applicant has provided the required submissions [Appendix E].
TIMELINES & NEXT STEPS:
Should Council adopt Amendment Bylaw, 2025, No. 3164 a business licence could be issued to operate a Bed and Breakfast.
REPORT REVIEWED BY:
1. Bill Brown, Director of Development Services, Reviewed
2. Deb Hopkins, Director of Corporate Services, Reviewed
3. Kristi Bilodeau, Acting Director of Finance, Reviewed
4. Dan Horan, Chief Administrative Officer, Concurrence
LIST OF ATTACHMENTS:
1. Appendix A: Zoning Bylaw, 1992, No. 2050, Amendment Bylaw, 2025, No. 3164
2. Appendix B: Aerial Map
3. Appendix C: Applicant’s Letter
4. Appendix D: Site Survey
5. Appendix E: Applicant’s Public Meeting Summary
6. Appendix F: Staff’s Presentation