TOWNSHIP OF ESQUIMALT STAFF REPORT
MEETING DATE: May 4, 2026 Report No. EPW-26-002
TO: Council
FROM: Joel Clary, Director of Engineering & Public Works
SUBJECT: Esquimalt Road Active Transportation and Underground Improvements - Phase 2 Update
RECOMMENDATION:
Recommendation
That Council:
a. Receive the Esquimalt Road Active Transportation and Underground Improvements - Phase 2 What We Heard Report for information;
b. Direct staff to continue with detailed design followed by construction tendering for:
i. Protected bike lanes on Esquimalt Road between Lampson Street and Fraser Street;
ii. Protected bike lanes on Esquimalt Road between Admirals Road and Canteen Road;
iii. Crosswalk and lighting upgrades on Esquimalt Road at:
1. Fernhill Road;
2. 1188 Esquimalt Road (The Renaissance);
3. Fraser Street;
4. Constance Avenue;
5. Sturdee Street;
6. St Paul Street;
iv. New signalized intersection at the Esquimalt Road and Nelson Street intersection;
v. New bus stop on south side of Esquimalt Road east of Constance Avenue; and
vi. Underground utility renewals and pavement restoration;
as described in Staff Report EPW-26-002.
Body
EXECUTIVE SUMMARY:
The purpose of this report is to provide an update on Phase 2 of the Esquimalt Road Active Transportation and Underground Improvements project, which is from Lampson Street to Fraser Street, and Admirals Road to Canteen Road. This report provides Council with a What We Heard Report on recently completed engagement for Phase 2. Staff are seeking direction from Council to proceed with detailed design followed by construction tendering, with construction beginning this summer.
BACKGROUND:
The Esquimalt Road Active Transportation and Underground Improvements Project is identified in the Township’s Active Transportation Network Plan (ATNP) to add quick-build protected bike lanes on Esquimalt Road from Canteen Road to Dominion Road. In addition, the project includes crossing, lighting and pedestrian improvements and sewer, drain and road repairs. The project is split into the following two phases:
• Phase 1 - Dominion Road to Lampson Street
• Phase 2 - Lampson Street to Fraser Street and Admirals Road to Canteen Road
• Phase 3 (New) - Fraser Street to Admirals Road.
The scope of Phases 2 and 3 includes coordination with City of Victoria on water service upgrades between Lampson Street and Admirals Road.
Chronology:
Previous discussions with Council on the ATNP and the Esquimalt Road Project occurred at the following times:
• August 23, 2021 - ATNP Council Check-In (EPW-21-020)
• February 7, 2022 - ATNP (EPW-22-003)
• July 15, 2024 - Esquimalt Road Project Update and Design Contract Award (EPW-24-021)
• October 28, 2024 - Esquimalt Road Phase 1 Update (EPW-24-026)
• April 7, 2025 - Esquimalt Road Phase 2 Update (EPW-25-005)
• July 7, 2025 - Esquimalt Road Phase 1 - Construction Contract Award (EPW-25-009)
• December 15, 2025 - ATNP Refresh and Esquimalt Road Phase 2 Update (EPW-25-018)
Phase 2 Engagement Update
During the last discussion with Council on December 15, 2025, Council directed staff to:
“…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…”
Following the above direction, design engagement was completed for Phase 2 through an online survey between February 19 and April 5, 2026, and a public open house on March 31. The survey received 361 responses, and the open house was attended by over 70 residents. A What We Heard Report summarizing this engagement can be found in Attachment 1. For materials used during the engagement, including select concept designs, please visit EngagingEsquimalt.ca.
Staff sent letters to Songhees and Xʷsepsəm Nations to inform them of the project and gather any feedback. In response to the letter, staff met with representatives from Xʷsepsəm Nations and discussed the project. In addition to the general information about the project that was included in both letters to the Nations, the letter to Songhees Nation requested any additional considerations as it pertains to the property at 1310 Esquimalt Road (Red Barn). The project was referenced at a recent Songhees Nation Chief and Council meeting, with a request to work with staff. No feedback has been received to date; however, should any feedback be received in the future that requires any scope changes, staff will incorporate the changes into the project or report back to Council, depending on the magnitude of the feedback.
During the engagement process, staff invited the Esquimalt Chamber of Commerce to meet to review the project scope and gather any feedback. The Chamber of Commerce indicated that a separate meeting with staff was not required and instead provided input focused on retaining as many parking spots as possible in front of businesses along Esquimalt Road, noting this as an ongoing concern for local businesses. In addition, the Chamber of Commerce undertook its own engagement process, which resulted in 15 responses. A letter from the Chamber summarizing this feedback is included as Attachment 2.
As part of the engagement process, staff connected directly with CFB Esquimalt to review the scope of the project and gather feedback. Prior to meeting with staff, CFB Esquimalt undertook internal discussions and collected input from various departments, including emergency services, and shared this feedback with staff. Staff then met with representatives from CFB Esquimalt to present the proposed design, answer questions, and discuss concerns. A primary issue raised was the need for quick and reliable access for CFB Esquimalt Fire from the fire hall at 1350 Esquimalt Road west on Esquimalt Road to Dockyard.
During the meeting, staff explained that the proposed road configuration includes one vehicle travel lane in each direction and an unobstructed centre turn lane, with no islands, which can be used by emergency vehicles when required. Following these discussions, staff learned that there had been a misunderstanding about the project scope within CFB Esquimalt Fire, which staff subsequently clarified. A follow‑up meeting between Township staff, including Engineering and Fire staff, and CFB Esquimalt Fire and staff from the Real Property Operations branch is planned for May 7, 2026. If changes to the scope are identified through this discussion, staff will either address them through minor design adjustments or, if necessary, bring them back to Council for consideration.
Additional feedback from the CFB Esquimalt related to traffic operations, particularly westbound left‑turn movements at Canteen Road, potential future congestion associated with growth and development of CFB Esquimalt, and right‑turn interactions with people cycling. Staff discussed that opportunities for a future joint signal upgrade at Canteen Road could be explored, shared a traffic memo analyzing corridor operations, and noted that the number of right‑turn conflicts does not warrant additional measures at this time. For reference, the traffic memo for the corridor can be found in Attachment 3.
Lastly, staff received a petition regarding proposed parking removals on Esquimalt Road in front of the Anglican Parish of St. Peter and St. Paul and the Community Capital Baptist Church (Church) located at 1379 Esquimalt Road expressing concern that the loss of on‑street parking will impact accessibility during services held at their facility. The petition includes 133 signatures and is provided as Attachment 4.
ANALYSIS:
After reviewing the What We Heard Report, staff recommend continuing with detailed design followed by construction tendering. According to the What We Heard Report, most participants felt the design supports Esquimalt’s goals for walking, biking, rolling, and transit in this area (70%) and slightly under half (44%) of participants said the design would increase walking, biking, or transit use. In addition, over half (53%) said the design would make them feel safer and more comfortable biking or using a mobility device along Esquimalt Road.
A further analysis of specific aspects of the feedback, including key themes identified in survey respondents’ feedback beyond the pre-populated answers in the questions is described below, along with corresponding feedback from staff:
Traffic Flow
Additional feedback through the engagement identified concerns about congestion and delays during peak travel times with the proposed changes. It is important to note that the section between Fraser Street and Lampson Street will not see any changes to traffic flow in the proposed design except potentially slower speeds due to narrower lanes. The proposed design in the section between Admirals Road and Canteen Road does change the traffic flow pattern by changing the current cross section of primarily two lanes in each direction to one lane in each direction with select turning lanes. To further assess this, the consultant completed a detailed traffic analysis found in Attachment 3.
Based on the consultant’s assessment, traffic flow is not expected to be significantly impacted. The only minor impact is to the eastbound left turn on Esquimalt Road to northbound on Admirals Road during peak times. The proposed turn lane is shorter than the current configuration as the existing left lane primarily functions as a left turn lane from Admirals Road to Constance Avenue in peak times; however, to accommodate parking on the north side of Esquimalt Road, a reduced turn lane is proposed. Initially, the design showed three parking spaces on the north side of Esquimalt Road in this block, but has since been reduced to two parking spaces in order to lengthen the left turn lane. The proposed design is as follows:
This design reflects the traffic memo in Attachment 3 and aims to balance both traffic flow and parking needs. One consideration for Council is which element to prioritize in the proposed design beyond protected bike lanes: parking or traffic flow. The options presented in the Options section below assume a longer left turn lane and only two parking spaces; however, direction could be provided to staff on the preferred method. From staff’s perspective, both options are technically feasible.
Parking
Additional feedback throughout this round of engagement and previous engagements identified concerns about the removal of on‑street parking on Esquimalt Road and overall parking availability along the corridor. This is further reflected in the feedback from the Chamber of Commerce in Attachment 2. In response to this feedback, the project design maintains two on‑street parking spaces directly in front of businesses on the north side of Esquimalt Road east of Constance Avenue, which was a clear priority identified during the first round of engagement. In addition, nine on‑street parking spaces are being retained on the south side of Esquimalt Road between Constance Avenue and Sturdee Street. These measures are intended to balance alternative transportation options with the parking needs of businesses and residents, while still meeting standard roadway configurations.
The engagement included a question asking participants about their experience finding on‑street parking following parking and time‑limit changes introduced in fall 2025 on nearby side streets. Results showed that 7% of respondents found it easier to find parking, 29% felt there was no change, and 28% felt it had become harder. From staff’s perspective, the added parking spaces, loading zones, and time restrictions would have increased overall parking supply and turnover in the area. This feedback likely reflects that some people are not aware of the recent parking changes, as well as ongoing concerns about meeting parking demand.
In response to feedback from the Church in Attachment 4, staff developed a new option to add up to six new parking spaces in front of the facility by meandering the eastbound lane at this location and removing the dual left turn lane onto Grafton Street/St Paul’s Place, per the below image.
While this option is feasible and meets applicable standards, staff are not recommending it at this time due to the introduction of roadway meanders and the fact that on‑street parking demand at this location is primarily observed during service times rather than throughout the day; however, this option is feasible and Council may consider this option as a way to prioritize parking in response to community feedback.
An additional impact of this design is the removal of the left turn lane for this short section, which would reduce the third centre lane that could be used by emergency vehicles in a scenario where traffic is congested in both directions and parking is in use. From staff’s perspective, this is a short section and the traffic flow in this area is primarily heavy in only one direction at a time, providing a counterflow opportunity for emergency vehicles, similar to other corridors in the Township.
Esquimalt Road West of Admirals
At the April 7, 2025 Council meeting, Council directed staff to advance designs for a project that includes “…interim bike facilities between Admirals Road and Canteen Road, including signal modifications at Nelson Street.” At the time, an interim treatment was being considered due to the middle portion of the corridor being paused, less traffic on Esquimalt Road west of Admirals Road, and a desire to maintain parking where possible in this section.
The proposed design in this section maintains 11 parking spaces and does not include any median islands (neither planted or hardscape) in order to reduce costs. The survey asked specific questions to further gauge the priorities in this section of the corridor. One question asked about protected bike lanes vs buffered bike lanes and the results were split down the middle with 50% preferring protected and 50% preferring buffered. The difference in cost for these treatments is $150,000 ($60,000 for medians and $90,000 for green conflict paint). As protected bike lanes align better with the ATNP, staff propose using protected bike lanes instead of buffered. The options presented in the Options section below assume protected bike lanes; however, direction could be provided to staff on the preferred method.
Another question asked respondents to choose all items that they considered key for this section, resulting in an interesting spectrum of priorities with an upgraded crosswalk at Constance as the highest priority and center median islands as the lowest (see page 28 of the What We Heard Report for further details). These results generally align with the proposed design elements. If Council wants to reduce scope west of Admirals, the feedback from residents may serve as a helpful guideline to determine the community priorities.
One item that stands out near the bottom of these priorities is the lower rating of the new bus stop east of Constance to support routes 40 and 46. It is important to note that even if a new stop is not added, the proposed bike lane removes the parking on the south side, which was a previous concern associated with the bus stop. Also, given the desire from BC Transit and the significant gap in the network for bus stops in the area, staff recommend keeping the new stop in the final design as a way to balance all modes of transportation.
Public feedback on this section also identified the desire to see improvements to the signal at Esquimalt Road and Admirals Road to reduce conflicts. Staff have identified this intersection to be reviewed for potential changes to signal timing/phasing and geometry as a part of Phase 3.
Based on the support for the proposed design in the engagement, staff recommend continuing with detailed design.
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.
OPTIONS:
The below are four options for Council’s consideration, including draft motions. The motions are provided in detail, should Council want to remove or select different aspects from the different options. To help differentiate the below options, the project is being segmented into:
- Eastern Segment = Lampson Street to Fraser Street
- Western Segment = Admirals Road to Canteen Road
With all of the below options, Council may consider changes to them, including changing protected bike lanes to buffered bike lanes or removing select intersection improvements. Please note that even in a scenario where there’s no bike facilities in the Western Segment, the crosswalk improvements are still feasible as stand-alone improvements.
For clarification, all of the below options consider asset renewals where applicable. Should the scope of the pedestrian and bike facility aspects of the project be reduced, staff will review where asset renewals are needed based on best practice. For example, if Council provides direction to not add bike lanes in the Western Segment, staff will still consider asset renewals, in consideration of future projects on the corridor and asset condition in order to optimize renewals and limit future rework.
Option 1 - Full Pedestrian and Protected Bike Lane Improvements (recommended option)
This option includes all planned pedestrian improvements and provides the highest level of bike facilities by installing protected bike lanes on both segments of the project. In the western segment of the corridor, this option maintains 11 on-street parking spaces and retains a more typical Major Road alignment by minimizing roadway meandering.
Key Considerations
• Most closely aligns with the ATNP.
• Maintains a predictable roadway alignment consistent with a Major Road function.
• Does not add additional parking beyond what was identified through earlier engagement.
Draft Motion:
That Council:
a. Receive the Esquimalt Road Active Transportation and Underground Improvements - Phase 2 What We Heard Report for information;
b. Direct staff to continue with detailed design followed by construction tendering for:
i. Protected bike lanes on Esquimalt Road between Lampson Street and Fraser Street;
ii. Protected bike lanes on Esquimalt Road between Admirals Road and Canteen Road;
iii. Crosswalk and lighting upgrades on Esquimalt Road at:
1. Fernhill Road;
2. 1188 Esquimalt Road (The Renaissance);
3. Fraser Street;
4. Constance Avenue;
5. Sturdee Street;
6. St Paul Street;
iv. New signalized intersection at the Esquimalt Road and Nelson Street intersection;
v. New bus stop on south side of Esquimalt Road east of Constance Avenue; and
vi. Underground utility renewals and pavement restoration;
as described in Staff Report EPW-26-002.
Staff recommend this option as it most closely aligns with the goals of the ATNP by providing the highest level of pedestrian and cyclist improvements on the corridor.
Option 2 - Full Pedestrian and Protected Bike Lane Improvements with Additional Parking in the Western Segment
This option includes all pedestrian improvements and protected bike facilities in both segments, while also increasing on-street parking in the Western Segment near the Church at 1379 Esquimalt Road, as described and shown above. As noted, to achieve this, the roadway would meander more than typical for a Major Road but still within standard design requirements and the turn lane would be removed. All other aspects of this option are the same as Option 1.
Key Considerations
• Adds approximately six additional parking spaces in the Segment to address parking concerns from the Church.
• Increased roadway meandering changes the user experience on Esquimalt Road, although the design remains technically compliant with standards.
• Removal of the left-turn lane is operationally feasible given low turning volumes; however, the addition of parking and loss of turn lane reduces available roadway width that can function as an emergency access lane during incidents, which was identified as a preference by CFB Esquimalt. This is similar to other corridors in Esquimalt.
Draft Motion:
That Council:
a. Receive the Esquimalt Road Active Transportation and Underground Improvements - Phase 2 What We Heard Report for information;
b. Direct staff to continue with detailed design followed by construction tendering for:
i. Protected bike lanes on Esquimalt Road between Lampson Street and Fraser Street;
ii. Protected bike lanes on Esquimalt Road between Admirals Road and Canteen Road;
iii. Meander Esquimalt Road near 1379 Esquimalt Road to accommodate additional on-street parking;
iv. Crosswalk and lighting upgrades on Esquimalt Road at:
1. Fernhill Road;
2. 1188 Esquimalt Road (The Renaissance);
3. Fraser Street;
4. Constance Avenue;
5. Sturdee Street;
6. St Paul Street;
v. New signalized intersection at the Esquimalt Road and Nelson Street intersection;
vi. New bus stop on south side of Esquimalt Road east of Constance Avenue; and
vii. Underground utility renewals and pavement restoration;
as described in Staff Report EPW-26-002.
Option 3 - Full Pedestrian Improvements with Partial Protected Bike Lanes in the Western Segment
This option includes all pedestrian improvements and provides protected bike lanes throughout the Eastern Segment of the corridor. In the Western Segment, protected bike lanes are constructed to the mid-block west of Nelson Street, after which the design transitions back to existing conditions for the remainder of the corridor.
Key Considerations
• Provides a high level of cycling comfort where demand and connectivity are strongest by connecting to high density north of Esquimalt Road off of Constance Avenue and Nelson Street.
• Reduces design impacts in the westernmost section, including effects on parking, road alignment, and emergency access for CFB Esquimalt.
• Results in a transition area that will be less comfortable for people cycling and less consistent with the ATNP.
• Maintaining four vehicle lanes west of Nelson Street will decrease the pedestrian experience in this section, although it will match existing conditions.
• Creates an inconsistent user experience for cyclists.
• Represents a compromise between full corridor implementation and localized concerns.
Draft Motion:
That Council:
a. Receive the Esquimalt Road Active Transportation and Underground Improvements - Phase 2 What We Heard Report for information;
b. Direct staff to continue with detailed design followed by construction tendering for:
i. Protected bike lanes on Esquimalt Road between Lampson Street and Fraser Street;
ii. Protected bike lanes on Esquimalt Road between Admirals Road and mid-block west of Nelson Street;
iii. Crosswalk and lighting upgrades on Esquimalt Road at:
1. Fernhill Road;
2. 1188 Esquimalt Road (The Renaissance);
3. Fraser Street;
4. Constance Avenue;
5. Sturdee Street;
6. St Paul Street;
iv. New signalized intersection at the Esquimalt Road and Nelson Street intersection;
v. New bus stop on south side of Esquimalt Road east of Constance Avenue; and
vi. Underground utility renewals and pavement restoration;
as described in Staff Report EPW-26-002.
Option 4 - Full Pedestrian and Protected Bike Lane Improvements in Eastern Segment and No Improvements in Western Segment
This option prioritizes pedestrian and bike improvements in the Eastern Segment only. Similar to the other options, this option sees the new signalized intersection at Nelson proceed and the addition of the bus stop east of Constance Avenue. Bike and pedestrian improvements in the Western Segment would be deferred for consideration as a future project, similar to Phase 3. In this scenario, the frontage improvements at 602 Esquimalt Road (northwest corner of Esquimalt Road / Nelson Street intersection) would omit bike facilities. Should a future project on this corridor proceed with bike facilities, the project would be required to install the protected bike lanes on this frontage, unless the development hasn’t proceeded to Building Permit at that time.
Key Considerations
• Prioritizes pedestrian and bike improvements in the Eastern Segment only.
• Creates an uncertain timeline for improvements in the Western Segment and misses an opportunity for a development to fund protected bike lanes on their frontage.
• Limits changes in the Western Segment, including impacts to parking and roadway configuration.
Draft Motion:
That Council:
a. Receive the Esquimalt Road Active Transportation and Underground Improvements - Phase 2 What We Heard Report for information;
b. Direct staff to continue with detailed design followed by construction tendering for:
a. Protected bike lanes on Esquimalt Road between Lampson Street and Fraser Street;
b. Defer protected bike lanes on Esquimalt Road between Admirals Road and Nelson Street to Phase 3 for consideration as part of the next Council Priorities Plan;
c. Crosswalk and lighting upgrades on Esquimalt Road at:
i. Fernhill Road;
ii. 1188 Esquimalt Road (The Renaissance);
iii. Fraser Street;
d. New signalized intersection at the Esquimalt Road and Nelson Street intersection;
e. New bus stop on south side of Esquimalt Road east of Constance Avenue; and
f. Underground utility renewals and pavement restoration;
as described in Staff Report EPW-26-002
Option 5 - Alternative Direction
Direction in this option is to be provided by Council.
Draft Motion:
That Council provide alternative direction to staff.
Option 6 - Further Information
In this option, Council could request further information from staff before providing direction on the ATNP refresh and next priority projects.
Draft Motion:
That Council request further information from staff.
COUNCIL PRIORITY:
Engaged & Healthy Community - Implement Active Transportation Network Plan
FINANCIAL IMPACT:
For Esquimalt Road Phase 2, the 2026-2030 Financial Plan identifies a $3,661,482 budget (originally $3,750,000) for Phase 2 which is based on the following breakdown:
o Design = $161,482 (reflects costs incurred of $88,518 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 $4,161,482. The most recent estimate for the full scope of the project is $4,003,525 and includes 30% in contingency. After receiving direction from Council on the desired scope of this project, as requested in this report, staff will refine the design to fit within this budget amount. The current budget is anticipated to be sufficient to complete the full scope, but will be subject to construction tendering bids expected this summer. Any adjustments to the budget will be presented as part of the staff report for Council’s consideration in awarding the construction contract.
Due to cost escalation over the project phasing, there is no budget identified for Phase 3 at this time. Any scope that is removed from Phase 2, could be considered with Phase 3. Phase 3 budget allocation to be considered in the 2027 budget with any remaining Phase 2 funds being transferred to Phase 3.
COMMUNICATIONS/ENGAGEMENT:
The What We Heard Report provides the communications and engagement completed to date. Prior to construction, communications will be provided to impacted residents and businesses along the corridor, should the project proceed.
TIMELINES & NEXT STEPS:
The next step in this project is to complete detailed design and tender the project. Staff will report back to Council with the results of the tendering process for Council’s consideration to award a construction contract. Staff anticipate tendering the project in May/June and report back to Council late June or early July. Construction would then take place approximately from July to October 2026.
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 - What We Heard Report
2. Attachment 2 - Chamber of Commerce Letter
3. Attachment 3 - Traffic Memo
4. Attachment 4 - Letter and Petition from Church