Shaping the Capital Region Over 50 Years
Territorial Acknowledgement The Capital Regional District (CRD) recognizes the Indigenous peoples who have had connections to this land for thousands of years. When the CRD was incorporated 50 years ago, it allowed for a new relationship between the provincial government, municipalities, electoral areas and residents of the region. Today, the Board of the CRD has proclaimed that it is a priority to build positive working relationships with First Nations governments in the region to recognize a common future for the next 50 years and beyond.
The CRD acknowledges and respects that its jurisdictional boundaries span the traditional territories of the Coast Salish and Nuu-chah-nulth peoples: on the Peninsula and Southern Gulf Islands, the W̱ SÁNEĆ peoples, known today as W̱ JOȽEȽP (Tsartlip), BOḰEĆEN (Pauquachin), SȾÁUTW̱ (Tsawout), W̱ SIKEM (Tseycum) and MÁLEXEȽ (Malahat) First Nations and Pune’laxutth’ (Penelakut Tribe); in the core area, the Lkwungen people, known today as Esquimalt and Songhees Nations; and to the west, Scia’new (Beecher Bay), T’Sou-ke and Pacheedaht First Nations. The CRD also recognizes the many other First Nations who have ties to this region stretching back long before the European settlers arrived. They include: Stz’uminus (Chemainus), Quw’utsun (Cowichan), Halalt, Lake Cowichan, Lyackson, Tsawwassen and SEMYOME (Semiahmoo).
Appreciation The CRD would like to thank all of the elected representatives who have served on the CRD Board over the years as well as the staff and volunteers who have supported their vision. Through 50 years, there have been 22 Board Chairs, some of whom served multiple years as Chair. In addition to this, the CRD would like to thank the people of the communities they represent.
Design by Chris Paul, Coast Salish (Tsartip) artist
Acknowledgement 3
Shaping the Capital Region Over 50 Years This commemorative book takes the reader on a journey from the Capital Regional District’s (CRD) incorporation in 1966 to the celebration of its 50th anniversary in 2016. Travelling through time over five decades, featuring key milestones that defined the role of the CRD, events that led to lasting partnerships and the scope of services, programs and initiatives of the CRD, this book looks at the positive contribution the CRD has made to the quality of life for the residents of the region.
A view of the beach at Point No Point in Shirley, located in the Juan de Fuca Electoral Area. Photo: Timothy Neesam goo.gl/qMbCAS
5 Published by: Capital Regional District (CRD) in association with Blue Beetle Books Inc.
625 Fisgard Street Victoria, BC V8W 1R7 250.360.3000 www.crd.bc.ca
ISBN: 978-1-895051-30-8
Shaping the Capital Region Over 50 Years
Copyright © 2016 Capital Regional District
First published in 2016 - all rights reserved
This book was produced in collaboration with Blue Beetle Books Inc.
Every effort has been made to ensure the information in this book is up to date and accurate; however, the authors, contributing writers and editors cannot guarantee all information provided to them is without errors or omissions. Readers are advised to contact the CRD for further information or to confirm the accuracy of statements and statistics contained in this publication.
Cover design and book layout by Tom Spetter (Integral Creative)
© All rights reserved. No part of this publication may be reproduced or transmitted in any form or by any means electronic, mechanical, photocopying, recording or otherwise, or stored in a retrieval system without the prior consent of the publisher. Reviewers may quote brief passages in conjunction with a review written for inclusion in a magazine, newspaper or broadcast.
Printed and bound in Canada by Friesens
C016245 Table of Contents
Territorial Acknowledgement ...... 3 CHAPTER TWO: Investing in Community – 1976-1985 . . 49 Introduction ...... 11 1979 – Animal Control ...... 49 Regional Districts – A Short History ...... 14 1980 – Transportation Planning ...... 51 Capital Regional District Governance ...... 17 1982 – Volunteers in Parks Program ...... 52 1982 – Capital Region Housing Corporation . . . . 54 CHAPTER ONE: 1983 – Fire Protection & Regulation ...... 55 The Early Years – 1966-1975 ...... 23 1983 – Stormwater & Watershed Management . . 57 1966 – Capital Regional District Formed . . . . . 23 1983 – Regional Information Services ...... 58 1966 – Sewers & Disposal ...... 24 1984 – Smoking Bylaw ...... 59 1966 – City of Victoria ...... 26 1984 – District of Metchosin ...... 60 1966 – District of Saanich ...... 27 1985 – City of Colwood ...... 60 1966 – District of Oak Bay ...... 28 1966 – Township of Esquimalt ...... 29 CHAPTER THREE: 1966 – District of Central Saanich ...... 30 A Busy Decade – 1986-1995 ...... 65 1966 – District of North Saanich ...... 31 1987 – Official Regional Parks Plan ...... 65 1966 – Town of Sidney ...... 32 1987 – Galloping Goose Regional Trail ...... 67 1967 – Hospital District Act ...... 35 1987 – 911 Service ...... 68 1967 – Salt Spring Island Electoral Area . . . . .36 1987 – Libraries & Museums ...... 70 1967 – Southern Gulf Islands Electoral Area . . . 37 1988 – Town of View Royal ...... 73 1970 – Juan de Fuca Recreation Centre ...... 38 1988 – Harbour Authority ...... 74 1973 – Solid Waste Management Planning . . . . 40 1989 – Blue Box Curbside Recycling Program . . . 79 1974 – Royal Theatre ...... 42 1990 – Rethinking Health ...... 81 1974 – Community Health ...... 43 1992 – Core Area Wastewater Treatment Planning . 82 1976 – Saanich Peninsula Water Supply . . . . . 45 1992 – Trans Canada Trail ...... 85 8 Shaping the Capital Region Over 50 Years 1992 – City of Langford ...... 86 CHAPTER FIVE: 1993 – District of Highlands ...... 87 A Sustainable Future – 2006-2015 . . .121 1993 – Regional Emergency Response ...... 89 2006 – Capital Regional District Goes 1994 – Water Conservation ...... 90 International ...... 122 CHAPTER FOUR: 2007 – Organics Management & Kitchen Regional Growth – 1996-2005 . . . . .95 Scraps Diversion Strategy ...... 123 2007 – Purchase of Leech River Watershed . . . 125 1996 – Regional Drinking Water System 2008 – Climate Action Service ...... 127 for Greater Victoria ...... 95 2008 – Salt Spring Island Transit ...... 129 1996 – Saanich Peninsula Wastewater 2009 – E&N Rail Trail-Humpback Connector . . . 131 Treatment Plant ...... 99 2011 – Pedestrian & Cycling Master Plan . . . . 133 1998 – Water Testing Laboratory ...... 101 2013 – Aboriginal Initiatives Division Established . 134 1999 – District of Sooke ...... 102 2014 – Regional Transportation Plan ...... 135 1999 – Juan de Fuca Electoral Area ...... 103 2014 – First Nation Task Force Established . . . .137 2000 – Arts Development ...... 105 2000 – Parks Land Acquisition Fund ...... 106 CHAPTER SIX: 2000 – Sea to Sea Regional Park Reserve Core Services Today, Looking & Sea to Sea Green Blue Belt ...... 107 to the Future ...... 141 2001 – Lochside Regional Trail ...... 109 Looking Forward ...... 144 2002 – Sooke Lake Reservoir Raised ...... 110 2003 – Regional Growth Strategy ...... 111 2004 – Ultraviolet Water Disinfection System . . .112 2004 – Hartland Landfill Gas Utilization . . . . . 114 2006 – Sooke Potholes ...... 115 2006 – Hazardous Materials Response System . . 116
Introduction
he capital region is a vibrant, diverse and beautiful place to live, work, play and visit. Tourists flock There from all over the world, travel magazines praise its virtues, residents enjoy a high standard of living and the business community enjoys continual growth and increasing diversity.
The region enjoys a temperate climate, a rich ecology, stunning landscapes and a proud history as it encompasses the provincial capital, the Maritime Forces Pacific, the birthplace of Emily Carr, Canada’s oldest Chinatown and First Nations communities dating back for millenia.
Residents and visitors enjoy spectacular natural scenery, clean and plentiful drinking water, a number of public parks, hundreds of kilometres of trails, world-class recreational facilities, state-of-the-art hospitals, two acclaimed universities and more.
Field in North Saanich at sunset. Photo: iStock.com/David Bukach
11 In 2015, 535,000 passengers from 227 cruise ships docked at • 618 structures covering over 92,000 square metres, Victoria’s Ogden Point, 2.4 million people in 740,000 vehicles including bridges, dams, docks and Capital Region travelled aboard BC Ferries and 1.6 million passengers flew Housing Corporation complexes and buildings that in and out of the Victoria International Airport, making the provide 1,314 residences capital region one of the most visited locations in Canada. • eight wastewater systems processing 100 million litres of wastewater daily Over the past 50 years, the Capital Regional District has worked with its municipal partners to serve the public and • 30 regional parks covering 130 square kilometres and build vibrant, livable communities and a prosperous and 214 kilometres of trails sustainable economy, practising the highest standards of • 1,250 rights of way, such as the E&N Rail Trail-Humpback environmental stewardship. Connector and the Channel Ridge trails on Salt Spring Island
Governed by a 24-member Board of Directors representing • the blue box curbside recycling program servicing more 13 municipalities and three electoral areas on southern than 123,000 households Vancouver Island and the Gulf Islands, the CRD delivers more • Hartland landfill, which receives, on average, 120,000 than 200 regional, sub-regional and local services tonnes of municipal solid waste per year and captures to residents. methane gas which is converted into electricity that is capable of powering 1,100 homes The capital region covers 4,860 square kilometres, including ocean, some 70 islands and the traditional territories of 22 Regional co-operation, mutually beneficial decision-making, First Nations, 11 of which hold reserve lands throughout the and advancing shared interests shape the essence of the capital region. The CRD provides services to a population of CRD: an effective, efficient and open organization where more than 370,000 and impacts the lives of local residents in communities strive to achieve exemplary environmental many ways, for example, through the management of: stewardship; a dynamic, vibrant economy; and an inclusive, • 16 drinking water systems that treat and deliver 130 caring society. The unique communities and passionate million litres of water daily residents of the capital region together weave a fabric that makes the CRD’s community of communities one of the best • 750 kilometres of pipe infrastructure, which would travel places in the country to live, work, play and visit. from Victoria to Golden if laid end to end
A view of Washington’s Mount Baker from McNeill Bay (also known as Shoal Bay) in Oak Bay. Photo: Evan Leeson.
12 Shaping the Capital Region Over 50 Years 13 authority to provide governance and services for the region Regional Districts – as a whole or through sub-regional partnerships among A Short History groups of municipalities and electoral areas. The creation of regional districts would eventually provide the opportunity In the late 1960s, the Province recognized that there was a to join hospital and government services under the same need to address service requirements that crossed municipal regional board by way of the hospital district and regional boundaries, manage urban fringe issues, address the lack of district and establish a new way for local governments in BC planning in rural areas and provide the opportunity to gain to borrow through the Municipal Finance Authority. economies of scale in service provision. In 1966, by order of government, the Regional District In addition to the needs related to planning and service of the Capital of British Columbia was incorporated. As a delivery, other forces that supported the formation of a new newly incorporated order of government, this federation regional political and administrative framework included of municipalities and electoral areas was given a variety the need to address the problem municipalities had with of mandated authorities and the ability to progress on obtaining long-term capital borrowing and the need to resolving regional issues, provide shared local government resolve the issue of local inequities in hospital finance. services and take responsibility for local decision-making in rural areas. As of 1965, municipalities and unincorporated areas within the capital region were part of a number of special purpose Hugh A. Curtis was the first Chair of the Capital Regional boards (water, health and regional planning) and were District and was the first Chair of the Municipal Finance involved in multiple projects. At that time, the communities Authority. In his first report to the Board in 1966, he wrote: of View Royal, Colwood, Langford, Sooke, Metchosin and “As the Regional District concept increases in responsibility Highlands were not incorporated. and scope I believe it is most important that Directors attempt, wherever possible, to explain the nature of this In 1964, the provincial Municipal Act was amended authority, its areas of jurisdiction, and its relationship to to allow for the creation of regional districts. Regional other governmental bodies within the region. Only through districts were created to provide a political forum and such an educational process will our fellow citizens fully administrative vehicle for collaboration among municipalities appreciate the need for regionalization with respect to and unincorporated electoral areas. They became the local certain functions and the manner in which this work is government for the electoral areas and were given the carried out and expanded.”
The Legislative Assembly of British Columbia, located in downtown Victoria. Photo: iStock.com/Richard Goerg>Ag
14 Shaping the Capital Region Over 50 Years 15 16 Shaping the Capital Region Over 50 Years Capital Regional District Governance The Capital Regional District is an integral part of local government unique to BC. It is governed by a 24-member Board of Directors representing 13 municipalities and three electoral areas and is supported by approximately 77 committees and commissions. Directors are appointed by municipal councils and are elected by the residents of the electoral areas. The representation is weighted according to population, with more representatives from the larger municipalities. The CRD is granted its powers by the provincial government and is governed by the Local Government Act. The CRD was incorporated in 1966 to provide regional decision-making on issues that transcend municipal boundaries. The CRD has more than 200 services and sub- services that enable the provision of infrastructure, operations, planning, programs and financing agreements with or on behalf of municipalities and electoral areas to deliver services in the following categories:
• regional, where all municipalities and electoral areas are served
• sub-regional, where two or more jurisdictions are served
• local/electoral areas, where the CRD is the local government
The CRD plays a key role in providing services that can be delivered efficiently and effectively through
The Capital Regional District’s original letters patent in the CRD boardroom.
17 Sailboats by the fish market in Sidney. Photo: Nat Klein region-wide or shared service delivery models by operating, delivering and managing services such as community parks, Letters Patent - Letters patent are the documents that recreation facilities, sewage treatment and disposal facilities, the Province of British Columbia uses to create every drinking water and recycling. The CRD is authorized to deliver local government (e.g., municipality, regional district, these services by letters patent, establishment bylaws or improvement district) in BC. The CRD was incorporated general authorizations within provincial Acts. Each service by letters patent and those original letters patent has a defined set of participants, a defined purpose and also designated the first “functions” of the CRD. New boundary, a method of cost recovery and often a maximum “functions” were added and new powers were given to amount to be taxed or borrowed. the CRD via supplementary letters patent.
The CRD is the local government for three unincorporated In the late 1980s, the Province changed the regional districts defined as electoral areas — Salt Spring Island, Juan district scheme and brought in legislation that replaced de Fuca and Southern Gulf Islands — and delivers numerous functions authorized by supplementary letters patent, local services to the residents of these areas. The CRD, as with “services” authorized by service establishment bylaws. a local government and shared services provider, develops partnerships to facilitate and deliver projects and services Bylaw - A law or regulation that is made by a local that benefit municipalities, electoral areas, First Nations and government and applies only to the local area. the region as a whole.
18 Shaping the Capital Region Over 50 Years Bold Bluff on the south shore of Salt Spring Island.
Introduction 19 20 Shaping the Capital Region Over 50 Years Camping in Ruckle Provincial Park on Salt Spring Island. Photo: iStock.com/jackcreative
21 A sketch of the new CRD headquarters on 625 Fisgard Street prior to construction.
The 625 Fisgard Street building that later became CRD headquarters.
22 Shaping the Capital Region Over 50 Years CHAPTER ONE: The Early Years – 1966-1975
he Capital Regional District’s (CRD) first decade was an exciting one, full of opportunity and change. Once Tincorporated, the organization took on a diverse range of projects that supported the growth of the region. It collaborated with government at the local level and created efficient and effective services across the region. In those early years, services had a wider, regional emphasis with a focus on the parks system, community health and community recreation planning. The early years of the CRD demonstrated a new regional government enthusiastically tackling important regional issues.
1966 – Capital Regional District Formed The letters patent, which initiated the formation of what was originally called the Regional District of the Capital of British Columbia, was issued by the Province of British Columbia on February 1, 1966. Planning Board. Nominations for the first elected directors, The “member municipalities” included municipalities and elected from each member municipality and electoral area, electoral areas. The municipalities were: District of Central were held April 25, 1966. Saanich, Township of Esquimalt, District of North Saanich, District of Oak Bay, District of Saanich, Village of Sidney and Voting regulations, as laid down by the provincial City of Victoria. The electoral areas were Colwood, Langford, government, stipulated that each member municipality Metchosin, Sooke and View Royal, and their boundaries were received one vote for every 5,000 residents (or portion described in an appendix to the letters patent. thereof). Each municipality got one director for every 25,000 population (or portion thereof). In the case of a municipality The first meeting of the new regional government was held having more than one director on the CRD Board, the number on February 16, 1966, in the offices of the Capital Region of votes was divided equally (as close as is possible).
Chapter One: The Early Years – 1966-1975 23 This method ensured a balanced Board sensitive to the local interests of the region and demographically representative of 1966 – Sewers & Disposal the population base. From its inception, the Capital Regional District was involved in sewage and disposal. The letters patent empowered the CRD The overarching rationale for creating regional districts Board to study the recommendations of a recently published was to allow municipalities and electoral areas to improve joint sewage disposal study titled: Sanitary Sewage Study of governance and work together to deal with issues that the Greater Victoria Area. The 1966 study provided a plan for affected multiple areas. The Minister of Municipal Affairs the development of trunk sewer and sewage disposal facilities had stated that the newly formed regional districts could be to serve the study area until 2015. a solution to the need for a reorganization of the hospital function in the Province. The first focus for the CRD was on The history of the capital region’s sewer system (constructed three key areas: between 1890 and 1920) started in 1894 when the first trunk sewer was built at Clover Point. A second trunk sewer • regulation of fireworks was added to service Oak Bay, the northeast section of the • a study of sewer needs City of Victoria and parts of Saanich in 1913, and around 1917 the northwest trunk sewer system was built to service parts • acquisition and administration of land for parks of Esquimalt, Victoria and Saanich. The Regional District of the Capital of British Columbia first set up shop in the historic 209 Burnes House in Bastion Square but soon All systems were designed to carry sanitary sewage only, relocated to larger premises on Yates Street due to a growing staff. except for certain portions in Oak Bay and Sidney that were designed to carry combined sewage and stormwater. Prior to the CRD, all sewage was discharged without treatment into the sea, except for several very small, isolated developments in Saanich and in the unincorporated areas served by small treatment plants.
On December 28, 1967, trunk sewers and sewage disposal was added as a function of the CRD (with the exception of Sooke, Salt Spring Island and the Southern Gulf Islands) to implement the 1966 sanitary sewerage study recommendations, which stated that all of Greater Victoria’s sewage be disposed of untreated through long ocean outfalls into the deep, well-flushed waters of the Pacific Ocean.
The original sewer system discharged untreated sewage directly at the shoreline. When the CRD inherited existing trunk lines from the provincial government, it recognized the
The Clover Point outfall was launched 1,500 metres into the ocean before being sunk to the ocean floor.
24 Shaping the Capital Region Over 50 Years 1971 Clover Point outfall construction. need to increase capacity and divert flow in order to continue Over the years, secondary treatment has been installed at six using the existing infrastructure and to mitigate human other locations: health risk. • Saanich Peninsula (North Saanich, Central Saanich and Sidney) The construction of the Macaulay Point pump station and outfall in 1971 ended five decades of discharging wastewater • Ganges Harbour (Salt Spring Island) onto the shoreline at Macaulay Point. In 1981, the Clover • Maliview Estates (Salt Spring Island) Point outfall was extended and the pump station constructed. • Buck Lake (Pender Island) These outfalls discharge sewage more than 1,500 metres off shore before being released to the ocean at a depth • Magic Lake (Pender Island) of 60 metres. In 1989, fine screens were installed in the • Port Renfrew (Juan de Fuca Electoral Area) Macaulay Point and Clover Point pump stations to remove sewage solids, plastic and floatable materials larger than Protecting the health of local environment and the residents six millimetres. The screenings are transported to Hartland who call it home is at the forefront of the CRD’s wastewater landfill twice weekly for disposal. management.
Chapter One: The Early Years – 1966-1975 25 The Victoria Inner Harbour serves as a hub of activity and travel, including whale watching and ecotourism businesses, float planes, and international ferry terminal, a water taxi service and a location for shows, concerts and market vendors.
On July 20, 1871, British Columbia became the sixth province 1966 – City of Victoria of the Dominion of Canada and Victoria was proclaimed the The City of Victoria stands on the traditional territories of the capital of the Province of British Columbia. Lkwungen people, known today as the Songhees Nation and Esquimalt Nation. The City was incorporated on It boasts a vibrant shipbuilding and ship repair industry and August 2, 1862, making it the second-oldest city in the Pacific a burgeoning tech sector in addition to traditional industries Northwest. It has the second-oldest Chinatown in North such as fishing and forest products. Underlining its credentials America and the oldest in Canada. Until the late 1800s when as an award-winning tourism destination, 227 cruise ships the Canadian Pacific Railway terminus opened on Burrard and 533,000 passengers visited Victoria’s Ogden Point Inlet, Victoria was the commercial centre of BC. terminal during the 2015 season.
In 1866, when the Colony of British Columbia and the The City of Victoria has a population of 80,017 Colony of Vancouver Island were united as British Columbia, (Statistics Canada 2011 census). Victoria was voted the Capital of the amalgamated Colony.
26 Shaping the Capital Region Over 50 Years Sailboats anchored in Cadboro Bay in the District of Saanich. Submitted by the District of Saanich
spectacular views over the southern tip of Vancouver Island. 1966 – District of Saanich First Nations people’s heritage in Saanich dates back Incorporated on March 1, 1906, the District of Saanich has thousands of years. Saanich’s name comes from the been part of the Capital Regional District from the regional SENĆOT-EN word W̱ SÁNEĆ meaning “raised up” or district’s inception. It is the most populous of all the region’s “emerging” in reference to their flood story when the land municipalities and is home, in part, to the University of arose from the sea. Early settlers, employed by the Hudson’s Victoria, which stretches across Saanich and Oak Bay’s Bay Company, arrived in the mid 19th century to clear forest borders. The municipality is also home to the Dominion for agriculture. In those days, Saanich provided food for Astrophysical Observatory. Victoria as its population grew, and, by the early 1900s, it was well-known for producing fruit and flowers. Today it still A mix of residential and farming landscapes cover Saanich’s retains its agricultural heritage but is also home to a large more than 100 square kilometres. It has a long shoreline proportion of the region’s residents. with beautiful beaches, including Cadboro and Cordova bays. Elk/Beaver Lake Regional Park lies within its borders, as do The Municipality of Saanich has a population of 109,752 Mount Douglas and Mount Tolmie parks, both which feature (Statistics Canada 2011 census).
Chapter One: The Early Years – 1966-1975 27 The Oak Bay Marina, built in 1962, lies in a sheltered harbour in Oak Bay. Photo: iStock.com/Kathryn Hatashita-Lee
there was no more horse racing; the exhibition hall and 1966 – District of Oak Bay other sundry buildings had been destroyed by fire. At that The District of Oak Bay, located on the Lkwungen territory, time, Oak Bay purchased the lands and permitted them to be was incorporated in 1906. In the early 1900s, there was developed for residential use. a land boom and much of the area was mapped out into lots. Much of what remained was left undeveloped and a Between 1945 and 1960, the Hudson’s Bay Company developed large area to the north was still owned by the Hudson’s Bay most of their remaining land for residential use, except land to Company. Oak Bay was at that time a middle-class streetcar the north, which they sold to the University of Victoria in 1960. suburb of the City of Victoria. Further significant development took place in the early During the 1900s, Oak Bay became a seaside community and 1960s; Oak Bay Marina opened and the remaining residential a place of recreation. The Victoria Golf Club opened in 1893, neighbourhoods were filled in. Since then the municipality and the Royal Victoria Yacht Club moved to Oak Bay in 1912. has, by design, seen little growth – just 0.1 percent over the There were cottages by the sea, resorts, camping on the last 50 years. beaches, fishing, golf and a wide range of other activities. At Windsor Park, people watched cricket and rugby or visited The District of Oak Bay has a population of 18,015 the fairgrounds for horse racing. However, by the mid-1950s, (Statistics Canada 2011 census).
28 Shaping the Capital Region Over 50 Years Esquimalt has several paths and walkways where residents and visitors can experience native flora and fauna. Submitted by the Township of Esquimalt. Photo: Josh McCulloch
employer, and the Esquimalt Graving Dock, the largest non- 1966 – Township of Esquimalt military shipbuilding site on the West Coast. The roots of the The Township of Esquimalt was incorporated as a district navy go back as far as 1837 when the Royal Navy began municipality on September 1, 1912. Like other municipalities in using Esquimalt Harbour. Esquimalt’s original townsite today the region, it has been inhabited by First Nations peoples for lies within CFB Esquimalt. thousands of years. Residential, commercial and industrial development are all The name Esquimalt means “the place of shoaling water,” an active in the municipality which has all the amenities and English derivation of the First Nations word es-whoy-malth, facilities expected of a progressive community including which is pronounced Ess-KWY-malt. parks, beaches, schools, a recreation centre, a sports centre, library and more. Esquimalt is a vibrant community anchored by Canadian Forces base (CFB) Esquimalt, the municipality’s biggest The Township of Esquimalt has a population of 16,209 (Statistics Canada 2011 census).
Chapter One: The Early Years – 1966-1975 29 A Garry Oak on agricultural lands located south of Mt. Newton Cross Road, between Central Saanich and East Saanich roads. Submitted by District of Centeral Saanich. Photo: Josh McCulloch
Beach Regional Park (known by local First Nations as TIXEN) 1966 – District of Central Saanich within its borders. The District of Centeral Saanich occupies the territory of the W̱ SÁNEĆ people. Today, it is a rural community with Central Saanich hosts a critically important commercial and almost two-thirds of the municipality located within the industrial zone for the region and is the only municipality agricultural land reserve. The municipality was incorporated in the region with First Nations governments (SȾÁUTW̱ on December 12, 1950. It is home to the world-famous (Tsawout) and W̱ JOȽEȽP (Tsartlip)) located within its Butchart Gardens, the Saanich Pioneer Museum and the jurisdictional boundaries. Saanich Fairgrounds and has a vibrant agricultural as well as burgeoning wine, beer and distillery sectors. The municipality The District of Central Saanich has a population of 15,936 has 32 municipal parks, two provincial parks and Island View (Statistics Canada 2011 census).
30 Shaping the Capital Region Over 50 Years The McTavish Interchange on the Patricia Bay Highway connects residents and visitors to the Victoria International Airport, the Swartz Bay Ferry Terminal and communities on the Saanich Peninsula. Photo: BC Ministry of Transportation
surprising that within its borders are 21 municipal parks, two 1966 – District of North Saanich regional parks, one provincial park and one federal park, along The municipality of North Saanich was incorporated with 25 kilometres of walking trails. North Saanich is also home in August 1965. In the early 1900s, it was part of a to the Panorama Recreation Centre. municipality that included the townsite of Sidney, but this was dissolved in 1911. North Saanich is the home of both the Swartz Bay Ferry Terminal and Victoria International Airport, making the Located in the W̱ SÁNEĆ territory, North Saanich is primarily municipality a transportation hub for visitors to an agricultural community at heart, both historically and Vancouver Island. geographically. Residential communities exist on the outer edges of the municipality, which is surrounded on three sides by 40 The District of North Saanich has a population of 11,089 kilometres of ocean shoreline. As a rural community, it is not (Statistics Canada 2011 census).
Chapter One: The Early Years – 1966-1975 31 The Town of Sidney has the mildest weather in Canada perfect for water sports such as sailing, kayaking and paddle boarding. Submitted by the Town of Sidney. Photo: Paula Kully
the Sidney Street Market attracts up to 5,000 people each 1966 – Town of Sidney Thursday night. Boaters are accommodated by Port Sidney Sidney was first incorporated on September 30, 1952, as Marina, a full-service marina with over 4,000 metres of dock the Corporation of the Village of Sidney and reincorporated space and 320 slips. The town has 24 parks and 16 beach on January 1, 1967, as the Town of Sidney. The W̱ SÁNEĆ accesses, a world-class aquarium and a thriving arts community. people originally occupied the lands for thousands of years. Approximately 8,000 people attend the Annual Sidney Fine Arts Show held at the Mary Winspear Centre, a state-of-the-art Known as “Sidney by the Sea,” the town has an area of 5.12 event and conference facility featuring a 310-seat theatre and a square kilometres that is compact, flat and walkable. Its permanent installation of First Nations art. primary industries are manufacturing, retail and tourism. The Town of Sidney has a population of 11,583 Sidney’s Waterfront Walkway, including the Bevan Fishing Pier, (Statistics Canada 2011 census). draws locals and tourists to the water. During the summer,
32 Shaping the Capital Region Over 50 Years The CRD’s jurisdiction is the southern tip of Vancouver Island and the surrounding 70 Gulf Islands, encompassing 2,370 square kilometres.
33 34 Shaping the Capital Region Over 50 Years 1967 – Hospital District Act In 1965, the Province took notice of several cross-boundary issues related to the equitable sharing of hospital costs by residents of the capital region.
At that time, a regional hospital servicing a large area was paid for by residents of the area where the hospital was located, so municipalities with smaller tax bases found it difficult to fund large facilities. Residents living outside the municipal boundaries would pay nothing and still have access to those facilities. As a result of this imbalance, the Hospital District Act was passed in 1967, which led to the creation of regional hospital districts.
The Capital Regional Hospital District (CRHD) was established through letters patent in 1967, with the purpose of The Royal Jubilee Hospital Capital Regional Hospital District infrastructure project provided state of the art facilities. establishing a consistent approach to funding hospital projects in the capital region. CRHD’s role was to cost-share capital costs associated with health facilities and collect Planning Commission, which was supported by the CRD contributions as a levy against property. Under the Hospital officers and the Hospital Planning Department. District Act, the auditor and the officers and employees of the Board of the CRD are the auditor and the corresponding Over the years, the CRHD has had major involvement with officers and employees of the regional hospital district board. local hospital boards and participates on project building committees. Unlike other regional hospital districts, the CRHD The CRHD’s letters patent were amended in 1974 to allow was one of the only regional hospital districts to include hospital planning to be carried out on a regional basis dedicated and qualified technical staff as an integral part of rather than by individual hospitals. This amendment gave the capital planning process. the Capital Regional Hospital District Board the power to revise, extend, relocate or discontinue existing services and Today, the geographic boundaries of the CRHD contain programs or initiate new ones. Furthermore, it had legal 49 percent of the population on Vancouver Island and authority over acquiring land, building hospitals, purchasing approximately 66 percent of the Island’s health facility equipment and hiring consultants, architects and contractors. infrastructure. It also obliged the Board to establish a Hospital & Health
Chapter One: The Early Years – 1966-1975 35 Saturday at the Salt Spring Island market.
patent as “The Corporation of the Township of Salt Spring 1967 – Salt Spring Island Island.” A decade later, in 1883, the Province, stating that Electoral Area the working out of the municipal system on Salt Spring Island was impracticable, cancelled the letters patent and dissolved Salt Spring Island is the largest of the Gulf Islands and has the the municipality. In 1967, Salt Spring Island became an largest population. electoral area within the Capital Regional District, electing one director to oversee local government services. Before Salt Spring Island was settled by pioneers in approximately 1859, it was inhabited by Coast Salish peoples. Farming is still a mainstay on Salt Spring, and the Salt Spring SYOWT, or Shiya’hwt meaning “go with caution” due to the Island Farmers’ Institute has been serving island farmers marine features making this place tricky to navigate, was a since 1895; its Fall Fair has been held for 120 years. Salt large village where present day Ganges now sits. The first non- Spring is world famous for its lamb and its plentiful orchards. Indigenous settlers were almost 50 percent African American; Cattle and chickens are raised on the island, and many sheep the rest were primarily European, Scandinavian, Australian and farms specialize in old English breeds of sheep. Japanese. These early pioneers carved farmland out of forest in what was then a remote island in terms of accessibility and Today, Salt Spring is a popular tourist destination due to its pastoral services. At that time, Salt Spring was also known as Admiral’s beauty, wineries, farm stands, artisans, wealth of natural health Island and Ganges Harbour was called Admiralty Bay, both practitioners and its famous artisan Saturday market. named by Captain Richards around 1858. Salt Spring Island has a population of 10,234 In 1872, Salt Spring Island requested municipal designation (Statistics Canada 2011 census). from the province, and in 1873, the island received letters
36 Shaping the Capital Region Over 50 Years Brooks Point Regional Park on Pender Island. Photo Davy Rippner
local government for the Southern Gulf Islands, and most 1967 – Southern Gulf Islands administrative functions are handled from the CRD head office. Electoral Area Land use decisions are under the purview of Islands Trust. The Outer Gulf Islands, as they were once called, include The Southern Gulf Islands receive less than 760 millimetres approximately 70 populated and unpopulated islands and of rain a year and enjoy long, hot, sunny summers and mild islets. The area belonged to the Salish peoples, known also as winters. They represent one of the province’s most popular the Saltwater People, whose relations extended from the area tourist destinations and the larger islands can be reached by known today as the Saanich Peninsula to the lands across the daily ferries from both Vancouver and Victoria. People flock to strait to Washington state. Galiano Island, Mayne Island, North the islands to boat, fish, kayak, hike, camp, view wildlife and and South Pender Islands, Saturna Island and Piers Island are visit the many artisans, wineries and organic food producers. where the bulk of residents live today, and smaller associated islands make up the unincorporated electoral area. The Southern Gulf Islands Electoral Area has a population of 4,868 (Statistics Canada 2011 census). The Outer Gulf Islands name was changed to Southern Gulf Islands on December 7, 2001. The CRD serves as the
Chapter One: The Early Years – 1966-1975 37 In 1994, the CRD acquired additional land adjacent to the 1969 CRD Name Change - On June 5, 1969, the Juan de Fuca Recreation Centre from the federal government Regional District of the Capital of British Columbia to build a velodrome for the 1994 Commonwealth Games. changed its name to the Capital Regional District. The velodrome, constructed for approximately $2 million, is one of two velodromes in the province and hosted the Commonwealth Games’ bike racing events. The JDF 1970 – Juan de Fuca Recreation Centre also hosted the lawn bowling events. Recreation Centre In 2016, the Juan de Fuca Recreation Centre is the premier In October 1966, supplementary letters patent were recreation facility for the western communities. It features received to construct the Centennial Swimming Pool an arena, swimming pool, weight room, fitness studio, nine- on leased land, and by December 1967, the pool was hole golf course, playing fields, ball diamonds, basketball open and operated by the CRD Centennial Swimming courts, lawn bowling, a world-class BMX track, private Pool Commission. On March 13, 1970, through additional meeting space and much more. It is the largest single-site supplementary letters patent, the CRD was granted the recreation centre in North America. authority to spend up to $160,000 to acquire, develop, maintain and operate what had been the Colwood Race Restructure of Municipal and Regional District Track for public recreation purposes; the CRD purchased Borrowings: In 1970, the Municipal Finance this land, upon part of which the Centennial Pool had been Authority of British Columbia (MFA) was formed by built. A parks commission was set up to develop a plan the Province of British Columbia. This act made the for the land, excluding the pool site. In November 1970, CRD (and all other regional districts) responsible for a referendum passed to construct an arena, and in 1974 consolidating and guaranteeing all the long-term debt a referendum passed to allow construction of the curling of its municipalities except for the city of Vancouver. rink and a senior citizens centre and to create another The act also required the consolidation of all long- commission. Finally, in 1975, a single commission bylaw term borrowings of regional districts (including their was put in place for the Juan de Fuca Parks & Recreation municipalities) to one authority, the MFA, to issue Commission. and administer the debentures (long-term loans) and created a province-wide joint and several liability In the 1990s, the West Shore Parks & Recreation Society took among the regional districts. The CRD no longer over the operations of the JDF Rec Centre. The Juan de Fuca incurred the administrative cost of issuing its own Recreation Centre continues to be governed by the West debentures, and CRD municipalities, no matter how Shore Parks & Recreation Society’s board of directors, which small, could borrow for capital and infrastructure at the is made up of representatives from the City of Langford, City same interest rate as the largest municipalities in the of Colwood, District of Metchosin, District of Highlands, Juan province. The CRD Board Chair became the first MFA de Fuca Electoral Area and Town of View Royal. Each local board chair, and the first CRD executive director moved government contributes toward the operation of the parks and to the MFA to the position of its first administrator. The recreation facilities. The CRD is a member of the society and MFA continues to be unique in Canada, and the CRD levies a tax for only the CRD share. and its municipalities continue to benefit from its AAA bond rating for debentures (borrowing).
38 Shaping the Capital Region Over 50 Years The old Centennial Swimming Pool in the 1970s. Currently, the pool resides in the West Shore Recreation building in Colwood.
Chapter One: The Early Years – 1966-1975 39 hazardous waste collection. An extensive environmental 1973 – Solid Waste monitoring and assessment program is in place for leachate Management Planning and landfill gas management.
The Capital Regional District became responsible for solid Today, solid waste management in the capital region consists waste disposal in 1973 when supplementary letters patent of a complex and mature materials management system that were issued by the Province of British Columbia directing all constantly evolves. Solid waste management planning needs regional districts to take control of solid waste management. to respond to increased population growth and new product In 1975, the CRD acquired Hartland landfill, which had stewardship programs that make producers responsible for been operating as a private facility since the early 1950s. their products. The CRD is now focused on looking at waste Located in the District of Saanich, the facility continued to be as a commodity for beneficial reuse. This includes a focus operated by a private contractor until 1985 when the CRD towards zero waste in Hartland landfill, waste-to-energy assumed direct operation of the site. systems, organics diversion and other emerging innovations.
The CRD’s first Solid Waste Management Plan (SWMP) was Within its mandate, the CRD educates, facilitates and approved by the Minister of Environment in 1988 and has regulates to help minimize waste and maximize resources. since undergone two revisions and eight amendments. Solid The overarching goal of solid waste management is to waste planning is based on the five-R hierarchy of reduce, extend the life of Hartland landfill by minimizing waste reuse, recycle, recover and residuals management. The first disposal and maximizing diversion opportunities, thus SWMP established a waste generation of 671 kilograms per contributing to protection of the environment. person in 1989. By encouraging people to reduce, reuse and recycle, the generation rate was cut almost in half by 2015, Hartland is an important regional asset and a multi-purpose at 347 kilograms per person. facility, providing recycling, household hazardous waste collection, a salvage area, yard and garden waste collection, In 1996, the CRD closed the first phase of Hartland landfill. controlled waste disposal and landfill disposal services for The area was capped and sealed with a plastic liner and a commercial and residential customers. layer of soil, allowing vegetation to grow as a top cover. Since then, the CRD has made significant efforts towards site 1973 – 3,000 old cars were shipped to a metal rehabilitation by planting a variety of native trees. In 2008, recycling plant in Richmond as part of the removal of the CRD received a $50,000 Trees for Tomorrow grant to junk cars initiative called Project SAM. plant thousands of trees, seedlings and bushes on-site. The long-term vision for Hartland is to have the site blend in with the forest that surrounds it.
Hartland has seen many upgrades and in 2005 won the Silver Landfill Management Excellence Award from the Solid Waste Association of North America. Over the years, it has won awards for its leadership and innovation in gas utilization, In 1997, the very first load of garbage was unloaded on Phase 2 its safety initiatives and its best practices for household of Hartland landfill.
40 Shaping the Capital Region Over 50 Years Chapter One: The Early Years – 1966-1975 41 The Royal Theatre was designed in 1912 and first opened its doors in 1913.
The award-winning Royal Theatre is a cornerstone of arts and culture in the Capital Region. Pictured: Jazz Fest 2015
by the Royal and Macpherson Theatre Society. In 1998, a 1974 – Royal Theatre CRD service was established, and the three municipalities Originally called the Royal Victoria Theatre, the Royal was transferred the theatre back to the CRD to facilitate built in 1913 and featured vaudeville shows. As vaudeville consistent, cost-shared funding for overdue capital work and started to become less popular in the early 1930s, Famous to maintain the operations. Players purchased it and turned it into a movie theatre. The building features a magnificent rococo/renaissance In February 1974, the Capital Regional District purchased revival style décor and is known as one of the best the theatre from Famous Players for $250,000 and held it in examples of large-scale vaudeville architecture in Canada trust for the cities of Victoria, Oak Bay and Saanich. Originally and is listed on the Canadian Register of Historic Places. In discussed as an interim location for the Victoria Symphony, September 2004, the CRD started a $2 million restoration of the previous owners continued to show movies for two the theatre with the help of an achievement award from the years. It was not until July 1974 that the CRD obtained the Heritage Canada Foundation. More than 1,600 pieces of terra title for the property from Famous Players. cotta were replaced or restored on the building’s façade. Currently, the CRD contracts with the Royal and McPherson The Royal was transferred to the municipalities of Victoria, Theatre Society to administer the theatre on the behalf of Oak Bay and Saanich in 1983 and was being operated the CRD Board.
42 Shaping the Capital Region Over 50 Years the administrator was to direct the development of long- 1974 – Community Health term care within the region. This preceded a new long-term On May 16, 1974 the Capital Regional District received care program introduced by the government in January supplementary letters patent, which transferred the authority 1978. The CRD Board agreed to accept responsibility for the of Greater Victoria’s pre-existing local boards of health new program as long as it was administered locally and all exclusively to the CRD to exercise within its jurisdiction. employees were selected and employed by the CRD. The CRD was given the authority to provide and administer community health services and programs and was the only regional district in the province to have its own health 1974 - The CRD office moves to Yates Street. nurses, clinics, children’s dental services and an appointed chief medical officer. With a financial contribution from the Province, it was able to provide and administer all 1976 - The CRD logo was designed by Vara Wilson, a CRD community health services and programs across the region. employee working as the secretary to the Board Chair and executive director. The CRD logo is an example of an To reduce costly hospital stays and the number of hospital ambigram, that is, it reads the same when it is turned beds required, preventative services at the community upside down. The design won her $100 and was judged level were expanded. In particular, infectious diseases were best of 12 entries submitted by staff. targeted. Polio was used as an example of how this could be successful; in 1974, the region had been 15 years without a A dental hygienist giving a demonstration at the official opening case due to the introduction of earlier preventative measures. of the Community Health Office at 1623 McKenzie Avenue on March 18, 1976. A mobile nursing service and an early hospital discharge service were also introduced. This allowed nurses to deliver nursing services at people’s homes under the instructions of physicians and helped keep patients out of hospital, which in turn freed beds for more urgent cases.
A nutritionist was hired to improve people’s eating habits, and an educationalist was given the job of teaching people about the risks of actions that could impact health, such as smoking and unsafe driving practices.
By early 1975, the CRD was seen as a trailblazer in the decentralization of healthcare services. Public health officers from across the province came to the region to learn more about the success of regionalization of healthcare services.
In 1977, a long-term care administrator position was created, with a salary paid by the provincial government. The role of
Chapter One: The Early Years – 1966-1975 43 44 Shaping the Capital Region Over 50 Years 1976 – Saanich Peninsula Water Supply Prior to 1976, Brentwood, Deep Cove and Sidney waterworks districts managed water services for the three municipalities on the Saanich Peninsula: Sidney, North Saanich and Central Saanich. In 1976, the Province of British Columbia deemed it in the public’s best interest to dissolve the three waterworks districts and transfer their assets and liabilities to the three Peninsula municipalities. Through supplementary letters patent, the Province transferred the water supply portion of all assets and liabilities held by the three municipalities to the Capital Regional District, creating the Saanich Peninsula water supply service. The CRD then borrowed $12 million to upgrade, extend and repair the waterworks infrastructure and expand the water system, including the provision of reliable water to agricultural lands on the Peninsula.
The Saanich Peninsula Water Commission, composed of 11 commissioners, includes the CRD director and one councillor from each Peninsula municipality, one member- at-large representing the agricultural community and one member from the W_SA´NEC´ First Nations. The commission provides community input for the delivery of the water service. This service is managed and operated by the CRD. The Saanich Peninsula Water Commission’s role is to advise the CRD Board of water supply matters and liaise between the Board and the three municipalities on water supply matters.
Today, the CRD continues to be the bulk (wholesale) water supplier to the Saanich Peninsula municipalities, unlike in other areas such as the Westshore and Sooke where the CRD is the retail water supplier directly to homes and businesses.
The Saanich Peninsula Water System consists of approximately 46 kilometres of water supply mains, nine balancing reservoirs, nine pumping stations, two pressure-reducing stations, nine supply meters and two rechlorination stations.
Since 1976, the CRD has been responsible for the Saanich Peninsula Water System. Pictured: Dean Park Drinking Water Reservoir in North Saanich
Chapter One: The Early Years – 1966-1975 45 46 Shaping the Capital Region Over 50 Years The float home village at Fisherman’s Wharf in Victoria. Photo: iStock.com/RJG
47 48 Shaping the Capital Region Over 50 Years CHAPTER TWO: Investing in Community – 1976-1985
The Fairmont Empress Hotel, built in 1908, is an iconic hotel located across from the Inner Harbour in downtown Victoria. Over the years, the hotel has hosted kings, queens and movie stars.
fter an exciting first 10 years, the Capital Regional District (CRD) began to take on additional 1979 – Animal Control Aresponsibilities beyond those outlined in its initial Prior to 1979, animal control was the responsibility of mandate. The CRD took over responsibility from the Province individual municipalities, except in unincorporated areas for animal control within the electoral areas, took on an where the Ministry of Agriculture’s livestock branch handled active role in fire protection, again in the electoral areas, and, it. Toward the end of the decade, the Province proposed in the early 1980s, was heavily involved in transit planning. to the Capital Regional District that it take electoral area responsibility for dog control specifically. Lasting achievements in this decade were the development of a Liquid Waste Management Plan and the establishment A proposal was put forward by the Agriculture Minister that of an integrated watershed management plan. During this offered a $10,000 start-up grant and revenues from the period, the CRD became involved and invested in additional sale of dog licences. The CRD accepted and applied to the services in communities across the region. It also started provincial government for supplementary letters patent on publishing a regular community newsletter. January 10, 1979. The initial terms also included a grant for three years to cover 50 percent of operating losses, up to $10,000 a year.
A look into the City of Victoria from the Juan de Fuca Strait. Photo: Tom Spetter
Chapter Two: Investing in Community – 1976-1985 49 5017 Shaping the Capital RegionCRD Over – 50 Years By 1986, the CRD, in addition to basic dog control and reimbursing farmers for financial loss from sheep and fowl kills from unidentified dogs, the pound was now receiving a variety of other animals, especially homeless cats.
In 2007, the CRD was nominated for, and won, a national award for its active fostering and adoption program. Today, the CRD Animal Shelter has a 97-percent rehoming rate for dogs and 94-percent for cats. Over 600 dogs find their way to the pound each year, along with approximately 400 cats.
As some of the electoral areas incorporated, the authority for animal control transferred to the new municipalities. Rather than set up their own animal control departments, they all chose to continue to receive the service from the CRD by contract. The CRD currently provides animal care services throughout the region, with the exception of Victoria, Oak Bay and Saanich. The service has dealt with a diverse range of animals over the years, including everything from snakes to alligators. When it comes to wildlife calls, the CRD works closely with WILDarc in Metchosin. Input from stakeholders and community members is key in the transportation planning process. CRD’s animal control services also provide outreach and educational programs across the region. For example, the 1980 – Transportation Planning Emergency Pet Preparedness Plan was developed in 2014 to help owners prepare for a major emergency or disaster, and Although the Capital Regional District has always been the CRD sells Emergency Grab ‘n’ Go Bags for pets. involved in discussions about transportation, regional districts were only responsible for transit planning between 1980 and 1983.
From as early as 1978, the CRD actively tried to convince the Province that deficits from running the transit system should not be charged as a levy on hydro bills. CRD directors worked with the Greater Vancouver Regional District to negotiate with the province to find ways to offset the deficit.
At that time, BC Hydro was responsible for running the bus CRD Bylaw and Animal Care administers the CRD dog licence system. The Province had created an Urban Transit Authority registry for over 11,000 pets in the capital region. in 1978; this set the stage for an increase in gasoline
Chapter Two: Investing in Community – 1976-1985 51 taxes along with a surcharge to BC Hydro customers. A passes and charters, and that money was then transferred land improvement levy was also introduced to help cover to the Urban Transit Authority to cover the CRD share of 35 future public transportation system deficits. April 1979 saw percent of transit system operating costs. motorists paying three cents a gallon more for gasoline to help raise approximately $2 million in expected losses. CRD directors actively worked toward the formation of a single agency to take responsibility for transit activities, The Urban Transit Authority Act (June 29, 1978) called for BC but on April 1, 1983, responsibility for transit planning and metropolitan areas to share responsibility for transit losses, management was transferred to BC Transit. which until that point had been absorbed by BC Hydro. In 1984, the BC Transit Amendment Act created regional Early in 1979, the CRD Board decided to request supplementary transit service areas in addition to the local transit service letters patent to give it responsibility over transit and planned areas. The first regional transit service areas were in Greater to bring in a gasoline tax bylaw. The CRD was subsequently Victoria and Greater Vancouver. Regional transit commissions given authorization to participate in the cost and operation of were established with responsibility for setting fares and urban transit. With its 14 member municipalities, the CRD service levels and raising the local share of any transit had the authority to enter into agreements regarding transit deficits within the regional transit service area. Members of planning, service levels and fares. these commissions were appointed from persons holding elected office in municipalities and electoral areas within the On April 1, 1980, BC Hydro ceased to have responsibility over regional transit service area. routing and financing of bus services, and the CRD took over the transit services operating agreement. The CRD Board anticipated, and planned for, significant growth in transit 1982 – Volunteers in services over the following five years by extending routes and purchasing more buses. In 1980/1981, the cost of the Parks Program capital region transit system was $13.35 million. By early Community involvement has always played a role in the 1981, there had been a substantial expansion of suburban regional parks system. As part of the care for regional parks bus services, including the approval of a park-and-ride bus and trails, park visitors removed branches that blocked transfer location at the Juan de Fuca Recreation Centre. trails, picked up litter and called in concerns during their regular outings in the parks. A formal volunteer program Over the next three years, the CRD made transit planning was put in place in 1982 as a way to assist park staff in the a priority; however, under the Urban Transit Authority Act, management and protection of parks, to help increase public three agencies were involved in transit activities – the CRD, awareness of park amenities and to provide a connection the Urban Transit Authority (UTA), and MetroTransit Operation between park users and staff. In 1985, the program had Company (MTOC) – along with the provincial government. grown to have at least one volunteer park warden for each This resulted in duplication of services and public confusion. of the then 15 parks. For instance, both UTA and CRD staff were handling service planning, while MTOC staff were involved in service Park stewards hike regularly in designated parks and trails schedules and operational planning. The CRD received all and report on trail and facility conditions and any observed of the fare box revenue from the buses, money from bus problems or issues. They help foster positive relationships
52 Shaping the Capital Region Over 50 Years In 2015, the CRD Board Chair Nils Jensen and CRD Regional Parks Committee Chair Susan Brice honoured Bill Spriggs (centre) for 25 years of volunteering for CRD Regional Parks.
One of CRD Regional Parks’ longest- serving volunteers, Bill Spriggs (left), beekeeping at Francis/King Regional Park with Alan King in 1991.
with regional park and trail visitors through information, engage and help build awareness, understanding and education and positive role modelling. The Capital Regional appreciation of the natural and cultural environments in District also has restoration volunteers who participate in regional parks and trails. removing invasive species and restoring natural habitats within regional parks and trails. In 1982, the CRD had four volunteer stewards and one volunteer beekeeper. Today, over 800 volunteers work in a Naturalists volunteer their time in the nature centres at Elk/ dozen programs, with some members volunteering for more Beaver Lake and Francis/King Regional Parks in Saanich and than 25 years. Witty’s Lagoon Regional Park in Metchosin. They welcome,
Chapter Two: Investing in Community – 1976-1985 53 1982 – Capital Region Housing Corporation In 1974, the CRD had acquired the function of land assembly, housing and land banking to undertake acquiring land for housing, either public or private, and public housing as if the CRD was a municipality. In 1982, the letters patent were amended to allow the CRD to incorporate a company for the purpose of public housing, which led to the creation of the Capital Region Housing Corporation (CRHC). The CRHC was incorporated under the BC Companies Act on December 10, 1982, and commenced operations on January 4, 1983. The CRHC is owned by the CRD, which is the sole shareholder. Its original mandate, which still stands today, is to build affordable rental housing for low-, modest- and middle- income families and households with special needs.
Renovations in 1985 converted Pinehurst heritage house Within its first year of operation, the CRHC had 105 in James Bay into nine apartments. townhouses under construction. These buildings had a capital value of over $8 million. Between 1984 and 1986, another 432 family units were opened for residents of the region. In 1986, the CRHC expanded its mandate to include seniors’ independent living, in which it has continued to play an important role.
Today, the CRHC owns and operates more than 1,400 affordable rental units in the region and houses approximately 4,000 residents.
The CRD manages and provides administrative support to programs that help address homelessness and the need for more affordable housing. The Regional Housing Trust Fund provides capital grants for “bricks and mortar” in the acquisition, development and retention of housing that is affordable to households with low or moderate incomes in the capital region. The Regional Housing Division administers the federal Homelessness Partnering Strategy program and works with its Community Advisory Board using a
54 Shaping the Capital Region Over 50 Years The East Sooke Fire Hall is a two-storey, 1,021-square metre building that houses six vehicles and includes a radio room, rack room, training classrooms, laundry and storage room, kitchen, activity room, washrooms and offices.
Housing First approach to help reduce and prevent homelessness. This approach focuses on helping people 1983 – Fire Protection & experiencing homelessness to move as quickly as possible Regulation into tenure-based housing options with adequate supports to meet their individual needs. Although supplementary letters patent granted the Capital Regional District authority to establish a fire protection Regional Housing also works to support municipalities in service in 1983, the CRD had a number of fire services increasing affordable housing in their areas through sharing prior to that. In 1971, the CRD Board adopted a bylaw to best practices and research. In 2016, the CRD and the establish South Galiano Island Fire Protection Specified Area Province entered into a partnership, the Regional Housing to undertake fire protection services. The CRD then entered First Program, that will see each of them provide capital into a contract with the South Galiano Fire Protection Society funding of up to $30 million for a total of $60 million to fund to have them provide fire protection in that area on behalf of affordable or supportive housing projects across the capital the CRD. That same year, the CRD created a service area for region. Island Health is a partner in the agreement and may fire protection services on North Pender Island. provide health support services and align its mental health and addictions service planning for some of the region’s most In 1983, supplementary letters patent gave the CRD the vulnerable residents. same authority for fire protection areas as municipalities as part of the Municipal Act. Through this change, the CRD was granted authority to establish fire protection as a function
Chapter Two: Investing in Community – 1976-1985 55 in the electoral areas, except for on Salt Spring Island it has its own fire improvement district. Since that time, the CRD North Galiano Fire Hall has established additional local fire departments, agreed to convert former fire improvement districts and fire protection The CRD and the North Galiano Fire Commission societies to CRD services. As the provincial fire regulations have completed the construction of a new fire hall in 2014. increased, the CRD has assisted these departments by providing As a post-disaster-rated structure, it will also serve as economical and efficient solutions on a regional basis. the community’s emergency operations centre. The fire hall is approximately 185 square metres and includes Today, municipalities are in charge of their own fire two truck bays, a washroom and laundry facility, radio departments, while the CRD and the Province coordinate this dispatch room, meeting room and a training room. function for electoral areas. Many of the local community- based services for fire protection in the electoral areas were East Sooke Fire Hall established through CRD bylaws. Some operate with local input from CRD commissions, while others operate under contract to The CRD and the East Sooke Fire Commission completed the CRD. Most of the members of these fire departments are the construction of a new fire hall in 2015. When the volunteers from within the communities they serve. original hall was built in 1985, East Sooke’s population was 550, but in 25 years, the population had tripled. Each of the volunteer fire departments is supported by As a post-disaster-rated structure, it will also serve as a commission established under the Fire Protection and the community’s emergency operations centre. The fire Emergency Response Service Commissions Bylaw. These hall is approximately 670 square metres and includes commissions represent the local community interests and six truck bays, washroom and laundry facilities, a hose exercise administrative authority for the delivery of fire tower, radio dispatch room, training facilities and offices. protection and emergency response services. In addition to providing fire protection services, the CRD also supports the Port Renfrew Fire Hall construction of fire department infrastructure. In 2009, Port Renfrew and Pacheedaht First Nation The CRD’s Environmental Planning & Engineeering Division partnered to develop a new fire hall for the provides professional engineering and construction management community’s volunteer fire department. This innovative services for infrastructure projects throughout the capital region. partnership was supported by both provincial and federal funds. The building was designed to seamlessly match the community centre while reflecting Nuu-chah-nulth architecture with the integration of cedar logs donated and prepared by Pacheedaht builders. Management of the service is funded equally by Port Renfrew property taxes and Pacheedaht First Nation government.
56 Shaping the Capital Region Over 50 Years Aerial view of the Esquimalt Lagoon. The lagoon is a natural tidal water body semi- enclosed by a sand and gravel barrier spit.
A sampling technician collecting water samples for testing.
it was difficult to evaluate the impact on the beaches from 1983 – Stormwater & the sanitary sewer systems. These results led to increased Watershed Management sampling and monitoring and eventually, the construction of the east coast interceptor sewer and a new service in 1997 In 1982, the Capital Regional District began sampling to control pollution in stormwater runoff. In 1994, sampling shoreline discharges near sanitary sewage outfalls and of creeks and streams at municipal borders was added to discovered that the pollution in the discharges in the the Core Area Stormwater Quality Management program to stormwater systems and other points was so significant that determine contaminant contributions.
Chapter Two: Investing in Community – 1976-1985 57 By 1995, CRD had developed a model storm sewer bylaw to provide municipalities with the regulatory powers to prohibit certain types of wastes from being discharged into storm sewers and watercourses. In 1997, under the authority of the new service, the program began developing watershed management plans to extend the same approach to surrounding watersheds.
The Harbours Environmental Action program began in 1994 to protect and improve environmental quality in Portage Inlet, Gorge Waterway, Victoria Harbour, Esquimalt Harbour and Esquimalt Lagoon. Initially, the CRD worked with other government agencies to conduct ecological inventories, assess the harbours environmental quality and develop a Harbours Environmental Management Strategy. Since 2004, the program has been coordinated and implemented through area-based, multi-stakeholder initiatives and projects designed to reduce contaminant inputs, assess and improve environmental quality, and achieve land and water uses that protect the environment.
In 2000, the stormwater quality program and the environmental action program were included under the CRD’s Core Area Liquid Waste Management Plan, and, in 2008, they Regional Information Services tracks growth trends and were combined to create the current Integrated Watershed collects population, demographic, housing, employment and construction information. It also maintains an extensive Management Program. collection of fact sheets, profiles and publications. Photo: Courtesy of the Times Colonist Today, the program works collaboratively with other levels of governments, including First Nations, and the community to maintain healthy harbours and watersheds and protect the 1983 – Regional Information nearshore receiving environment by monitoring stormwater and watercourses and developing watershed protection Services strategies and tools. Furthermore, key areas within the In 1983, the Province of British Columbia removed regional region’s harbours and watersheds undergo restoration, and planning as a service of regional districts. Although the there is a public education program to promote voluntary Capital Regional District ceased to provide planning services, best management practices. The program effectively the Board viewed the statistical data gathering and analysis protects the region’s local watersheds, and ultimately the related to commercial development and growth in general as marine receiving environment, by reducing stormwater essential to the capital region and continued these activities contamination and improving overall watershed function. as Regional Information Services (RIS).
58 Shaping the Capital Region Over 50 Years The RIS division also worked with the community to provide information to businesses and the public. Demographics data was provided to new businesses to assist them in finding a suitable location for their markets. These profiles were supplied at a cost of $100 and tailored to each specific business. Tradespeople seeking employment would also visit the department to obtain information on large-scale projects in the region.
The Regional Information Services office attracted 10-20 people a day looking for information, and when the CRD moved to 625 Fisgard Street, the department requested a first-floor office to allow people easy access to printed information. Today, publications remain on display in the division’s offices (now known as Regional and Strategic Planning) and are available to the public.
1984 – Smoking Bylaw The first smoking related bylaw was implemented in 1984 as a smoking control bylaw, which started progressive restrictions on areas where smoking was allowed. In 1990, the bylaw name was changed from the No Smoking Bylaw to the Clean Air Bylaw, and in January 1, 1999, the bylaw was amended to rule that all indoor public spaces be 100 percent smoke-free. On July 1, 2007, the bylaw was again amended to include businesses that had patios where food and beverages were served and/or consumed.
In 2014, the CRD Board amended the Clean Air Bylaw, increasing the scope of the ban on tobacco smoking within The CRD has the exclusive authority under its health letters the capital region. This bylaw made all parks, playgrounds, patent powers, and the Local Government Act, to enact and playing fields, public squares and bus stops smoke-free and enforce public health bylaws governing activities within the extended the smoke-free buffer zone outside of doorways, entire region. This includes smoking. Staff work closely with windows and air intakes from three metres to seven metres. Island Health, municipal partners and community stakeholder This was consistent with smoking bans in other jurisdictions groups to ensure effective implementation of this bylaw, on Vancouver Island, throughout BC, and across Canada. primarily through focusing on increasing public awareness Enforcement of the new bylaw began April 1, 2015, following and education about the bylaw and health issues associated an extensive public education and awareness campaign. with exposure to second-hand smoke.
Chapter Two: Investing in Community – 1976-1985 59 Metchosin’s rocky shorelands and sand beaches overlook the Juan de Fuca Strait and the Olympic Mountains. Submitted by the District of Metchosin
In Metchosin are four regional parks, and the Galloping 1984 – District of Metchosin Goose Regional Trail runs through this small community. The Metchosin is a small, coastal farming community, and in 1984 community is also home to Pearson College UWC, a private was the first CRD electoral area to incorporate. Evidence of pre-university school for up to 200 students from around First Nations settlements throughout the municipality includes the world. It’s one of 15 United World College schools and middens, burial sites and fortifications in the forested hills, colleges worldwide. Annually, the Capital Regional District pasture lands and coasts that make up this beautiful landscape. Board supports the college by giving a grant via a scholarship Coast Salish lore says that the area was once called Stinky Fish towards the tuition of a capital region or BC student. because a whale had washed ashore and rotted. This is where the annual artisan’s studio tour gets its name. The municipality sees its neighbouring communities experiencing phenomenal growth while it strives to contain In addition to the Stinking Fish Studio Tour, the community has growth and maintain its rural identity. the Metchosin International School of Summer Arts, the Fired Up pottery exhibition and sheep dog trials. There is minimal The District of Metchosin has a population of 4,803 retail, commercial or industrial activity, but many small farms (Statistics Canada 2011 census). grow vegetables and fruit, and others raise sheep, pigs, cattle and poultry. A Sunday farmers market is held in the summer so residents and visitors can sample local fare.
60 Shaping the Capital Region Over 50 Years The Esquimalt Lagoon is a saltwater lagoon located in Colwood at the base of the Royal Roads University property. Submitted by the City of Colwood
Colwood is Belmont Park, the primary military housing area 1985 – City of Colwood for those posted to CFB Esquimalt. The City of Colwood, incorporated on June 24, 1985, is one of the capital region’s fastest growing communities. The The community enjoys over 50 parks and has extensive municipality spans the shared traditional territories of the ocean waterfront at Esquimalt Lagoon, which is separated Coast Salish peoples. Ancient and historic landmarks abound from the Pacific Ocean by Ocean Boulevard and features a in this small municipality and include significant middens national migratory bird sanctuary. and two national historic sites: Fort Rodd Hill built in the late 1890s and Fisgard Lighthouse dating back to 1860. Major residential developments are taking place in Colwood School, built in 1874, was the first school house in Colwood: the 160-hectare Royal Bay Community is destined the capital region. At the time, 12 students were registered to have 2,300 homes, housing up to 7,000 people over at the school, and the teacher was paid $50/month. Hatley the next 15-20 years. In 2016, approximately 12 major Castle, built in 1902, is now part of Royal Roads University. residential, commercial and institutional projects were either in the planning stages or underway in Colwood as Colwood is on the western side of Esquimalt Harbour and the community plans for future growth in residential and the location of many parts of Canadian Forces base (CFB) community services. Esquimalt: a nuclear, biological and chemical warfare school; a damage control training facility; a fuel depot; a supply The City of Colwood has a population of 16,093 depot; and the Pacific fleet diving unit. An important part of (Statistics Canada 2011 census).
Chapter Two: Investing in Community – 1976-1985 61 62 Shaping the Capital Region Over 50 Years The Chinatown in downtown Victoria is the oldest Chinatown in Canada. Photo: iStock.com/Kathryn Hatashita-Lee
63 64 Shaping the Capital Region Over 50 Years CHAPTER THREE: A Busy Decade – 1986-1995
he Capital Regional District (CRD) hit its stride in the mid-1980s working with municipalities, electoral areas Tand the community at large on many exciting and important projects and programs.
Early in the decade, an official regional parks plan was developed to ensure a diversity of protected natural landscapes across the region. The concept of the Galloping Goose Regional Trail was born, libraries were built on the Southern Gulf Islands and the CRD became a harbour authority. The blue box curbside recycling program was introduced and health care was regionalized as seven hospital societies became one. The region became the first in North America to implement an enhanced 911 system and saw a coordinated approach to regional emergency preparedness. The CRD also took on responsibility for ensuring the long-term provision of a sustainable regional water supply.
1987 – Official Regional Parks Plan Turning meadows into fields of beautiful blue and purple in early The concept of regional parks began in the late 1950s. At this spring, Camas flowers are significant to the local ecology. time, several reports came out that noted two problems: lack of beach parks and lack of picnic areas. developed, but the need for larger parks for recreation or for preservation of important natural features was increasing By the mid-1960s, public concern was rising over the lack of as rapid urban development threatened many of the larger a mechanism for acquiring rural parks. Small parks were well natural areas. In 1965, the Park (Regional) Act provided legislation for establishing and maintaining a system of A view from the peak of Mount Work in the regional parks. In 1969, a report was prepared by the Capital District of Highlands. Regional District Planning Board that recommended areas for
Chapter Three: A Busy Decade – 1986-1995 65 This plan established a framework for the CRD regional parks system’s development, management and operation over the next 20 years. The purpose of the plan was to provide a diversity of protected natural landscapes for residents of the CRD to enjoy and appreciate, offering the opportunity to incorporate outdoor activities in the natural environment into their lifestyle. Policies were developed on all aspects of the park system and individual park management: planning, resource management, visitor use, interpretation and information, park facilities and administration.
The plan also outlined a classification system to reflect Elk/Beaver Lake was one of the first parks added to the CRD natural features and recreational activities: regional parks system in 1966. • nature appreciation parks would provide opportunities acquisition as parkland. The report generated a lot of interest for increasing awareness and knowledge of the natural as close to half of the existing regional parkland had been environment of the CRD obtained through the transfer of public property. Over 1,300 • recreation parks would provide opportunities for a hectares had been purchased for approximately $3.5 million, diversity of appropriate recreational activities that and additional lands had been donated. The 1969 report depend upon the natural landscape expanded the concept of regional parks to include a trail system, scenic marine drive, parkways and green lands. • wilderness-type recreation parks would provide opportunities for recreational experiences of solitude and In 1980, the CRD hired a consulting firm to produce the harmony with nature. Capital Regional Parks and Recreation Master Plan. The major • park corridors would provide opportunities for long- recommendations from the plan were to: distance, non-motorized travel in a natural setting • increase the mill rate to support development and between parks and other regional points of interest acquisition of parkland General guidelines were developed for each of the existing • form a CRD Parks Department (formally a division of the parks, clarifying their purpose and direction and identifying Engineering Department) an appropriate level of development. • continue the implementation of the 1969 park acquisition and trail proposals
• place a greater emphasis on development rather than acquisition
66 Shaping the Capital Region Over 50 Years The Galloping Goose Regional Trail was originally a freight railway line built during the First World War.
primarily for transporting logs and freight, but it also provided 1987 – Galloping Goose a passenger service, a gas-powered rail car known as the Regional Trail Galloping Goose. Victoria resident Margaret Lowe fondly recalled riding the “rail-bus” in the 1920s with her father, The Galloping Goose is one of the early “rails-to-trails” and in 1988 won a competition to name the trail. conversions in North America. Built on a railway corridor, the Goose, as it’s affectionately known, is 55 kilometres The idea of using the entire rail corridor from downtown long and runs from downtown Victoria to Leechtown, an Victoria to Cowichan Lake as a non-motorized provincial old gold mining town long since taken back by nature in park was part of the Dogwood Provincial Parkway Proposal. Kapoor Regional Park. The original rail line was established However, the vision never materialized; instead, the Province by Canadian Northern Pacific Railway and then Canadian leased a 43-kilometre portion of the corridor to the Capital National Railway between 1911 and 1924. It was used Regional District in 1987 for the purpose of a regional trail
Chapter Three: A Busy Decade – 1986-1995 67 within a linear park. The CRD was granted authority to establish, would sometimes reach the wrong jurisdiction, thus making manage and maintain the trail and park corridor from Atkins it difficult to determine the exact location of an emergency Avenue in View Royal to Leechtown. Two additional sections without questioning the caller. To add to this confusion, of the former rail corridor were leased to the CRD in 1993, both a rural fire district and a city fire department could be which extended the trail and park corridor from Atkins Road responsible for part of an incorporated area, while the city to Switch Bridge (a 100-metre pedestrian bridge crossing police department covered the entire area. Calls could not the Trans-Canada Highway near Carey Road in Saanich) and be transferred from police to fire until the correct agency from Switch Bridge to the south side of the Selkirk Trestle (a was identified. bridge spanning the Gorge Waterway in Victoria). An enhanced 911 system, as adopted by the CRD, was The Galloping Goose Regional Trail receives about 1.8 designed to reduce or eliminate boundary problems by million visits a year. Some people use it as a commuter automatically routing calls to the appropriate PSAP. The 911 route, others to ride their bikes leisurely through everything dispatcher receives not only the voice communication but from urban landscapes to old growth forest, some simply also a visual display of the caller’s phone number, name of to walk their dog, or hike through beautiful countryside. company and address location of the telephone so they can The Galloping Goose is an important link from downtown immediately ask the nature of the emergency. Victoria to the Westshore and beyond, connecting communities and providing a safe place for residents of all Using enhanced 911 technologies, a call originating ages to actively travel. anywhere in the capital region is selectively routed to the primary PSAP within the policing jurisdiction where the call The Galloping Goose reflected a significant expansion in the originated. Regional Park Service delivery into Regional Linear Parks. Today, the CRD provides administration and oversight of 911 call answer services, with CRD staff providing the 1987 – 911 Service service in the areas served by the RCMP. The CRD currently has three PSAPs: In the 1970s, 9-1-1 was pioneered by AT&T as a way to expedite the routing of emergency calls. BC Tel (later • Victoria Police – providing service to Victoria and renamed and rebranded Telus) provided 911 routing in the Esquimalt Province of British Columbia, and the regional government • Saanich Police – providing service to Saanich, Central implemented the service by installing private 911 switches. Saanich and Oak Bay
In 1987, the Capital Regional District was the first region in • Westshore RCMP – providing service to the remainder of North America to implement an enhanced 911 emergency the CRD response system. Before this, emergency response was the responsibility of individual municipalities through basic 911 systems. Basic 911 systems allowed for only one public safety answering point (PSAP) per telephone company, The Saanich Police Communication Centre is one of three public resulting in a lack of conformity between political, safety answering points located in the CRD. jurisdictional and wire centre boundaries. Emergency callers Photo: Saanich Police Communications Centre
68 Shaping the Capital Region Over 50 Years 69 1987 – Libraries & Museums Libraries and museums are an important part of communities as they play a role in developing literacy, sharing knowledge, providing access to information and serving as a hub of resources, including modern technology, public programs and meeting spaces. The Capital Regional District’s role in libraries and museums relates to providing contributions to support the construction and development of these facilities and to provide operating funding.
The Salt Spring Island Library has over 180 volunteers, a The Southern Gulf Islands libraries represent five collection of over 59,000 items and receives 216,216 library independently run facilities on Pender, Mayne, Galiano, visits annually. Saturna and Piers islands. Each library has a governing board which sets governance and operational policies. The Within the Sooke Region Museum’s galleries, highlights of the region’s history and culture are presented through First Nations CRD brought the five libraries together and established the artifacts, historic photographs, dioramas, displays and scale Southern Gulf Islands Library Service to provide local funding models, depicting both important occasions and day-to-day life raised through taxes to these organizations. The Pender in the region. Island Public Library Association provided reporting support to the other four libraries as it was the only actual Library Society and had staff and the other island libraries were considered “reading rooms.” This complementary relationship allows areas of smaller populations to have access to these types of facilities through CRD funding and contribution. As a result of the Southern Gulf Islands library service, all of the groups have access to provincial programs such as interlibrary loans and childrens’ summer reading programs.
In addition to supporting libraries on the Southern Gulf Islands, the CRD built and funded the Salt Spring Island Library.
The CRD also provides support to the Sooke Region Museum. The museum is operated by the Sooke Region Historical Society, a non-profit society incorporated under BC’s Societies Act in 1975 and a registered charity. The CRD provides a grant funded by a tax and appoints one commissioner to the society’s board.
70 Shaping the Capital Region Over 50 Years Pender Island Library Piers Island Library
Pender Island Library was started by a volunteer group With such a low population, Piers Island cannot afford a in 1973 in the back room of the community centre. dedicated building, but book lovers have created a library When the original collection outgrew its space in 1990, in the fire hall that is overseen by three volunteers. The a dedicated library building was constructed at the collection has approximately 550 items and is open 24/7 Auchtrelonie Centre just east of the community centre. using a lockbox system. Today, the library contains more than 20,000 books, DVDs and CDs, which require a staff of over 50 volunteers Galiano Island Library to manage. In 2000, a group of Galiano residents decided that the Mayne Island Library Island deserved its own community library. None of them had any experience in planning or operating a library, but Mayne Island Public Library started in the 1980s as a over a couple of years, they researched, consulted, raised book exchange operated by the local postmistress. Early money, brought in more volunteers and, in January 2002, in the 1990s, a group of avid readers formed the Mayne opened a library in a 37-square metre storefront at the Island Library Club, which used its funds, plus a CRD mall. Operating costs were covered by a BC government grant, to rent a small space at the island’s centre store. grant and a tax-based CRD grant. For nearly 10 years, In 2004, after a major fundraising program, the library the Galiano Library Society had been working to find was completed. It is located in the town centre in a CRD some way for the island to construct a purpose-designed community park, and the building is now a CRD facility, building large enough to offer a full range of library rented back to the Mayne Island Reading Centre for services and also become a venue for other community $1 a year. activities.
Saturna Island Library The Galiano Library building was built by the CRD on land leased from School District No. 64. Construction Saturna Island’s Eddie Reid Memorial Library operates from began in November 2012 adjacent to the local school the basement of St. Christopher’s Church. The library started and community gardens and the collections were moved in 1990 and has since grown to have over 20 volunteers during May 2013. and 4,500 items in its collection. On Saturna, even those who are homebound have access to books via the library’s Salt Spring Island Library unique reader’s home service, which sees volunteer librarians delivering reading and viewing materials to those In the early 1930s, an actress named Mrs. A. J. Smith unable to travel. opened a pay lending library in a space over Mouat’s Store. This little library was open several days a week and provided its services at minimal cost. Later, a group of islanders organized a book-lending facility that
Chapter Three: A Busy Decade – 1986-1995 71 circulated a collection of books among its members. One buy the property adjacent to the Society’s library building. of the first books from this collection is in the Salt Spring In September 2009, after many years of planning by Archives, which are located in the present the library’s board and volunteers, the library received a library building. federal-provincial infrastructure grant of $4.55 million to construct a new building. In December 2009, Salt Spring A determined group of women worked on a library plan, Island voters passed a referendum for $2.75 million for and within 20 months, in November 1959, the Salt Spring library construction. Island library had its official grand opening, attended by the Superintendent of the B.C. Library Commission. The new Salt Spring library was completed in 2013 The new library was located in a back room of Mouat’s and boasts a 12,500 square foot facility built to last as Store. The library had 1,300 books when it opened a community hub that offers a comfortable, efficient and, by 1963, it had acquired 5,000 books and had an and unique artistic design. It has over 180 volunteers, annual circulation of 7,000. This success meant that the a collection of over 59,000 physical items and receives library had to find more space. Several years later, the 216,216 library visits annually. library doubled its size, purchasing a small house on the property and attached it to the existing structure. At the 2013 UBCM Convention, the CRD received the Wood WORKS! BC Community Recognition Award for The CRD started funding the operations of the library in the use of wood in constructing the new Salt Spring 1999 and in 2006 adopted a bylaw to borrow money to Island Library.
1987 – CRD bylaws are first entered into a computer.
1987 – Essay writing contest for local area students to learn more about the CRD. The prize was $2,500.
72 Shaping the Capital Region Over 50 Years A view from Thetis Lake, located in View Royal. Photo: Calypso Orchid goo.gl/xeuINh
Today, View Royal shares its boundary with Esquimalt Nation 1988 – Town of View Royal and Songhees Nation and is a gateway between Victoria’s urban core and the growing municipalities on the Westshore. The Town of View Royal, located in Lkwungen territory, was The thriving and vibrant community is experiencing growth, incorporated in 1988 and is home to many diverse parks with a seven percent increase in population between 2006 and trails as well as several historic buildings including the and 2011. Craigflower Manor House, a Canadian national historic site built in 1856 by the Hudson’s Bay Company. Some of the The Town of View Royal has a population of 9,381 Town’s parks include View Royal Park, Helmcken Centennial (Statistics Canada 2011 census). Park and Portage Park. All three of these are on land that was in or around Craigflower Farm, which flourished in the 1850s.
Chapter Three: A Busy Decade – 1986-1995 73 1988 – Harbour Authority The Capital Regional District was granted authority by the Province to act in the role of a harbour authority in Sooke and Langford through the issue of supplementary letters patent in November 1988. The CRD was able to hold, use and improve property for a seaplane harbour, small boat harbour and shelter or marina. This service became defunct soon after.
The current authority came from a provincial regulation passed in 1997, which gave the additional power to the CRD to operate a service of small craft harbour facilities. In the early 2000s, the CRD established the harbour authority as a service for the Southern Gulf Islands and Salt Spring Island due to the federal government divesting itself of small craft harbour facilities.
The CRD retains fiscal and regulatory authority for the small craft harbour service. For the operation of this service, the CRD Board has delegated authority to two commissions: Fernwood Dock Management Commission and Southern Gulf Island Small Craft Harbours Commission. These represent local community interests and exercise board administrative authority.
Fernwood Dock on Salt Spring Island (this page and page 76) is one of the 12 small craft harbours operated by the CRD.
74 Shaping the Capital Region Over 50 Years 75 76 Shaping the Capital Region Over 50 Years The CRD manages small craft harbours (docks) at 12 locations:
• Horton Bay (Mayne Island) • Miners Bay (Mayne Island) • Montague Harbour (Galiano Island) • Retreat Cove (Galiano Island) • Sturdies Bay (Galiano Island) • Hope Bay (Pender Island) • Port Browning (Pender Island) • Port Washington (Pender Island) • Fernwood Dock (Salt Spring Island) • Lyall Harbour (Saturna Island) • Piers Island Wharf (Piers Island • Swartz Bay (North Saanich)
These harbours are integral to the cultural, economic and social life of island community residents and visitors by providing:
• moorage • access points for supplies • police and other public services • water ambulance • emergency evacuation • mail delivery • water taxi and seaplanes • school boat
The school boat picks up and drops off school children. The boat has bicycle racks for the children so they can bike from the dock to school.
77 78 Shaping the Capital Region Over 50 Years 1989 – Blue Box Curbside Recycling Program In 1989, the Capital Regional District introduced the blue box curbside recycling program, which has since expanded both in terms of the number of households involved and the scope of what it accepts. The program has been the primary method of diverting tens of thousands of tonnes of waste from the landfill.
Originally, the program accepted only newspaper, glass bottles and jars, and metal food containers, but over the years, the list of items has progressively grown. Mixed paper was added in 1995 and corrugated cardboard and rigid plastic containers in 2000. By 2005, residents could put rigid plastic packaging and pizza boxes into their blue boxes.
In 2014, a new province-wide extended producer responsibility (EPR) program for residential packaging and printed paper started, which shifted the responsibility for the management of these materials from local governments to producers. This included all materials collected in the CRD blue box program. The CRD chose to enter into an agreement with the producers’ association, Multi Material BC (MMBC), to continue its residential blue box curbside and depot collection programs. The new EPR program provides funding of $5 million/year to the CRD.
Today, over 123,000 households are served by the blue box program, which collects an average of 18,000 tonnes of recyclables each year. On Salt Spring Island, and the Southern Gulf Islands, 11,498 households are serviced by community- operated recycling depots funded by the CRD and MMBC.
In 1995, mixed paper (such as magazines, junk mail, cereal boxes and scrap paper) was added to the blue box and apartment recycling programs. Family pictured with an entire year’s worth of curbside recycling materials.
Chapter Three: A Busy Decade – 1986-1995 79 80 Shaping the Capital Region Over 50 Years In December 2001, as the next step towards creating a 1990 – Rethinking Health sustainable health care system, the province restructured the In the 1990s, regionalization was introduced to help health governance system. The former CHR became one of streamline the distribution of scarce health care resources. two health service delivery areas, which made up the new This was part of the New Directions Initiative, which saw Vancouver Island Health Authority (VIHA). The CRHD was one regional hospital boards become responsible for capital of six regional health districts working in collaboration with planning and financing. However, approval of the local share VIHA, which later rebranded as Island Health. of the capital financing continued to be provided by the Capital Regional Hospital District (CRHD) for eligible projects. In 2006, the CRHD began investing in directly owning The revised model established a single layer of governance and constructing capital projects. The CRD, working with for each geographic area and reduced the number of hospital Island Health and non-profit health services organizations, societies; seven hospital societies were amalgamated into purchased land and developed care facilities to provide one, thereby creating the Capital Health Region (CHR). The services, primarily senior and dementia care units. It CRHD remained responsible for raising the local share of leases the land and develops the buildings, which are health capital costs while continuing to provide its share then operated by Island Health or non-profits that provide for eligible capital projects. The CRD remained responsible services. for providing community health services, and the CRHD continued to provide its share for eligible capital projects. Since its creation, the CRHD has been effectively funding the health system to ensure the best value for residents of In 1997, the BC health care governance system underwent a the region in accessing a broad range of health care. Over significant transformation to improve the health system and the years, it has provided funding for capital developments reorganize the provincial health care governance structure of all sizes and is constantly working in collaboration with and the management and delivery of community, home Island Health to provide residents with modern health and environmental health services. At this time, the CRD facilities and equipment. Community Health Department was transferred to the Capital Health Region. 1990 - In an effort to curb smoking habits in the capital region, January 24 was designated Cold Turkey Day. In 1999, the province restructured the Hospital District and The CRD urged all cigarette smokers in the community Community Health Region boundaries to be the same as the to demonstrate to themselves and their friends that Health Region boundaries. This meant that every Hospital District they could take control, quit smoking and become a in BC, except the CRHD, had its boundaries changed. This change part of a Tobacco-Free Healthy CRD 2000. Members created an obvious alignment between the service delivery of the CRD Board gave up smoking on that date in a areas for Community Health and Hospital Districts. symbolic breaking free of the smoking habit.
The CRD works in collaboration with Island Health to provide residents with modern health care facilities and equipment. Photo: Lotus Johnson goo.gl/Q4xtBB
Chapter Three: A Busy Decade – 1986-1995 81 1992 – Core Area Wastewater Treatment Planning In 1984, an invitation to consider the preparation of liquid waste management plans was sent to all municipalities and regional districts by the ministries of Municipal Affairs and Environment. Since this time, there has been extensive planning for wastewater treatment in the region.
On January 13, 1988, the Capital Regional District Board authorized the preparation of Stage 1 of the Liquid Waste Management Plan (LWMP) for the core area (the municipalities of Colwood, Esquimalt, Langford, View Royal, Saanich, Oak Bay and Victoria). The CRD had sewage treatment in place in other areas of the region: three Peninsula municipalities and numerous plants on the Southern Gulf Islands.
In 1989, in order to improve the shorelines and receiving environments, fine screens were installed in the Macaulay Point and Clover Point pump stations to remove sewage solids, plastic and floatable materials larger than six millimetres. The screenings are transported to Hartland landfill twice weekly for disposal.
In 1991, the CRD submitted Stage 1 of the LWMP to the province and received approval in 1992. At the time, confusion about liquid waste management abounded, and, in June of 1992, the CRD Board decided to hold a non- binding referendum to determine the wishes of the public in regards to wastewater treatment. The results of the referendum showed that 57 percent of residents were in favour of the current system of preliminary treatment, with
The CRD secured up to $788 million in funding from federal and provincial governments to support the Core Area Wastewater Treatment Program.
82 Shaping the Capital Region Over 50 Years Chapter Three: A Busy Decade – 1986-1995 83 The Craigflower Pump Station is part of the Core Area Wastewater Treatment Program conveyance infrastructure. the addition of development and implementation of seven sanitary sewer discharges. The Regional Source Control new liquid waste control programs: regional source control, Program protects core area sewage collection and treatment inflow and infiltration, harbours environmental action, facilities, public health and safety, and the marine receiving wastewater and marine environment monitoring, onsite environment by reducing the amount of contaminants that wastewater management, stormwater quality harbours and industries, businesses, institutions and households discharge trucked liquid waste. These programs are responsible for into the capital region’s sanitary sewer systems. The CRD liquid waste management, which involves the operation, meets or exceeds Canadian best practices for source control maintenance, replacement and expansion of wastewater and is a nationally recognized leader in this field. The infrastructure, as well as other activities that have regulatory program continues to play an important role in achieving reporting requirements and commitments to support, significant wastewater contaminant reductions and protecting inform and educate stakeholders about liquid waste and sewage facilities throughout the region. environmental protection. Planning for wastewater treatment continues to be a highly The CRD adopted a sewer use bylaw in 1994 to regulate debated topic. While planning for siting of a treatment
84 Shaping the Capital Region Over 50 Years plant remains a challenging task, liquid waste management programs have been initiated to provide treatment at the 1992 – Trans Canada Trail source as the planning continues. In 2006, the CRD received The National Trans Canada Trail (TCT) project started in 1992 a letter from the provincial government mandating treatment as part of Canada’s 125th anniversary celebrations. The in the core area. In 2012, provincial and federal funding section crossing the capital region was planned as the final agreements were announced to fund over $500 million for link in what will be, at 24,000 kilometres, the world’s longest the Core Area Wastewater Treatment Program, which was network of multi-use recreational trails. It will stretch from two-thirds of the estimated shareable costs. Shortly after, coast to coast to coast, from the Atlantic to the Pacific to the new federal wastewater management regulations required Arctic oceans, linking nearly 1,000 communities. all jurisdictions to put secondary treatment in place by December 31, 2020. The Capital Regional District’s section of the TCT is a 45-kilometre route running from the Cowichan Valley Planning for core area wastewater treatment continues Regional District (CVRD) boundary to Clover Point in Victoria. as the CRD and the core area municipalities and two Different sections of the trail will be managed by the First Nations governments are committed to implementing municipalities of Langford and Victoria along with the CRD. As a wastewater treatment system and meeting the of the publication of this book, the development of the route federal deadlines. is still ongoing.
The CRD is responsible for two sections, one being an 18.5-kilometre portion of the Galloping Goose Regional Trail, which now runs from Victoria to Jacklin Road in Langford. The CRD is also in the construction phase of a 13-kilometre section of the Sooke Hills Wilderness Trail running from Humpback Reservoir in Sooke Hills Wilderness Regional Park Reserve to the CRD-CVRD boundary.
The cost of the new trail is estimated at $2.3 million. To assist with the construction project, the CRD has received a grant of $650,000 from the Trans Canada Trail organization. The trail is expected to open in the summer of 2017, the 25th anniversary of the trail and Canada’s 150th anniversary.
Parts of the Galloping Goose Regional Trail make up a section of the Trans Canada Trail, a national trail linking every province and territory.
Chapter Three: A Busy Decade – 1986-1995 85 The City of Langford is a bustling community nestled in the foothills of Mount Finlayson. Submitted by the City of Langford
The municipality is known for its progressive development 1992 – City of Langford of recreational facilities which attract young families. These Incorporated on December 8, 1992, Langford has a history include City Centre Park, Westhills Arena and a new YMCA/ of European settlement dating back to 1851, when Captain YWCA Aquatic Centre. Langford is also the largest funding Edward Langford established one of four Hudson’s Bay partner of the Juan de Fuca Recreation Centre in Colwood. Company farms in the Greater Victoria area. Add to this three lakes, Goldstream Provincial Park, large portions of Mill Hill and Mount Wells Regional Parks, Once home to the Coast Salish peoples, Langford is one of numerous urban parks and fairgrounds that host festivals the fastest-growing municipalities in Canada and at the heart large and small, and it becomes obvious why young families of the Westshore: between 2006 and 2011, its population and businesses are flocking to Langford. grew by 30 percent. Also in Langford is a world-renowned golf resort and spa with several residential developments, The City of Langford has a population of 29,228 (Statistics adding to the diversity of housing in the municipality. Canada 2011 census). Residential development can be seen all over Langford as developers try to keep up with the demand for both luxury and affordable housing.
86 Shaping the Capital Region Over 50 Years A cedar forest on the Ross Durrance Road property in the Highlands. Submitted by the District of Highlands
Over 30 percent of the municipality consists of protected 1993 – District of Highlands parkland. In keeping with the rest of the Westshore The small Westshore municipality of Highlands, located in communities, the Highlands has seen higher population the shared territory of the W̱ SÁNEĆ and Lkwungen people, growth than most other areas, experiencing a more than became incorporated in 1993, making it one of the newest 11 percent increase in population between 2006 and municipalities in the capital region. Highlands is mostly 2011. Environmental stewardship is a high priority in this undeveloped and is mainly a rural residential community municipality as it strives to protect the natural beauty of its consisting of lakes, hills, parks and wilderness. Gowlland Tod surroundings. Provincial Park and Mount Work and Lone Tree Hill Regional Parks are all found within its borders. Scenic beauty and The District of Highlands has a population of 2,120 diverse flora and fauna are found in abundance. (Statistics Canada 2011 census).
Chapter Three: A Busy Decade – 1986-1995 87 88 Shaping the Capital Region Over 50 Years 1993 – Regional Emergency Response In 1993, the CRD had authority to prepare emergency plans for electoral areas, but it did not have the authority to actually coordinate emergencies or declare emergencies without further approval from the Province. The Capital Regional District worked for three years to convince the Province to grant the CRD the same authority as a municipality within the Emergency Program Act. The CRD finally got that authority by a provincial regulation, in 2004, just months before the Province, as a result of experience with the big Kelowna fires, updated the Emergency Program Act, mandating regional districts to assume the responsibility of a local authority for its electoral areas. Previously, regional districts had to get approval from the Province to prepare a local emergency plans or be the local authority, able to respond to emergencies and disasters in their own right.
Since then, the CRD has been fully invested in the development of regional emergency services. In 1999, the Regional Emergency Coordinators Commission was established, which consisted of more than 45 government and non-government stakeholder agencies involved in emergency management. The commission’s mandate was to work on a coordinated approach to disaster planning, response and recovery for the capital region.
As the provider of key services such as water, solid waste and others, the CRD prepares emergency plans for each service area supported by the CRD’s emergency operations centre.
Chapter Three: A Busy Decade – 1986-1995 89 Today, the CRD has a number of specific responsibilities for emergency response in the region, including:
• 911 service provider for the region • CRD fire dispatch • regional hazardous material response service • Juan de Fuca Search and Rescue • Salt Spring Island Search and Rescue
1994 – Water Conservation Water conservation has been an integral part of the Capital Regional District’s future water supply strategy since 1994. At that time, a key recommendation from the 1994 Long-Term Water Supply Plan was enacted: to develop and implement a water conservation program. Regular emergency planning, training and exercises ensure an effective capacity to respond to the emergencies or disasters Since 1994, the water conservation program has evolved that may occur in the region. and expanded. A water conservation bylaw was established in 2001 to schedule and set requirements to improve the In 2007, the CRD Board identified emergency management efficiency of outdoor watering. In the same year, an official as a strategic priority with a mandate to provide an definition of the term water conservation was adopted by the information and resource management system to coordinate organization: “Water conservation can be defined as practices, with local emergency programs in support of local authorities policies, techniques and technologies that improve the and strengthen the capacity to manage a multi-jurisdictional efficiency of water use. Increased efficiency expands the use emergency event or regional disaster. As a result, numerous of the water resource, freeing up water supplies for other uses, programs and initiatives were launched that provided such as population growth, new industry, and environmental information on regional emergency services to the public. conservation. Water conservation programs emphasize lasting day to day improvements in water use efficiency.” In 2012, the CRD launched a regional emergency preparedness website (PrepareYourself.ca) as a one-stop In addition to the regional water system, there are many shop for regional emergency preparedness. This website local water systems where the CRD has been working on was a collaborative effort by all municipal and electoral area water conservation. One example is the installation of water emergency program coordinators as was the publishing in meters, which allow the CRD to charge based on actual 2014 of Prepare Yourself: A Guide to Emergency Preparation metered water and change the pricing to have escalated in the capital region. rates over a certain base amount of consumption.
90 Shaping the Capital Region Over 50 Years Community outreach staff at the Saanich Fair engage residents and share water conservation educational materials.
Additionally, the CRD, at the request of the Regional Water The current residential water conservation program focuses Supply Commission, asked the Province to change the primarily on educational and outreach efforts, including plumbing code for the CRD to require low flow toilets. In attendance at community events, school lesson plans, a 2011, the Province put a regulation through to require the mobile drinking water cart, water conservation resources installation of high-efficiency toilets and urinals in all new and tools, and efficient water use workshops. The current residential buildings and renovation projects involving toilet business water conservation program supports industrial, replacements. commercial and institutional operations through technical water audits, fixture replacement incentives, and an The overall goal of the water conservation program upcoming ban on the use of once-through cooling equipment continues to be deferring the need for expansion of that removes heat by transferring it to a supply of clean, the regional water supply area and major infrastructure cold municipal drinking water and discharging it directly throughout the region. The current approach to water to the sewer. These include commercial and industrial air conservation, which was developed in 2012, is to use conditioners, refrigerators, coolers and ice machines. The an adaptive approach that adjusts resources and targets program monitors business water consumption through both programs in response to trends in water use. The water municipal retail billing and regional source control waste conservation program is responsible for developing, discharge permit data. All of these programs are aimed at implementing and evaluating water conservation strategies meeting the capital region’s long-term water savings goals. for residents and businesses.
Chapter Three: A Busy Decade – 1986-1995 91 92 Shaping the Capital Region Over 50 Years Hatley Castle, part of Royal Roads University in Colwood. Photo: iStock.com/David Mantel
93 94 Shaping the Capital Region Over 50 Years CHAPTER FOUR: Regional Growth – 1996-2005
996 to 2005 saw arts funding increase and the establishment of the Capital Regional District (CRD) 1996 – Regional Drinking Water 1arts and culture support service, overseen by the Arts System for Greater Victoria Committee and supported by the Arts Advisory Council and CRD staff. Through a non-binding referendum, citizens The Capital Regional District supplies drinking water for supported a levy to feed into a parkland acquisition fund, residential, commercial, institutional and agricultural uses which was subsequently set up. Sooke Potholes was to approximately 350,000 people within the capital region. purchased in partnership with The Land Conservancy, and a The protected water supply area lands are located within the trail management plan was approved which saw agreements traditional territories of the Coast Salish peoples. put in place to allow the CRD to operate the Lochside Regional Trail. Elk Lake was the water supply for Victoria in the early 1900s, but near the turn of the century it was determined that it Health was at the forefront of CRD activity during the could no longer meet the demands of Victoria’s water needs. decade, with the opening of a state-of-the-art water testing A study was carried out by an engineer from San Francisco, laboratory and the addition of UV disinfection to the drinking and Sooke Lake was recommended as a possible water water treatment system. source. A subsequent referendum of ratepayers supported this choice. A regional growth strategy was developed to provide a regional perspective on future planning, bringing Sooke Lake Reservoir began supplying water to Victoria communities together in a common goal to work toward on May 28, 1915; officials turned the valves, and for the enhancing the region’s quality of life and social well-being. first time water flowed from Sooke Lake Reservoir into the flowline and Humpback Reservoir, and into the pipes for the city. Sooke Lake Reservoir has been the primary water supply reservoir for the region ever since.
In 1948, the Greater Victoria Water District Act was passed. The first municipal participants were Victoria, Saanich and Esquimalt, with Oak Bay joining in about 1951. The City of Victoria sold the existing water system coming from the Since 1996, the CRD has managed and operated the Regional Sooke Lake Reservoir to the Greater Victoria Water District Water Supply System. (GVWD) and accepted a 15-year payment plan to recover the
Chapter Four: Regional Growth – 1996-2005 95 The CRD is focused on stewardship of watershed resources consistent with a sustainable, healthy water supply. sales price. In 1976, the CRD was given supplementary letters and the Juan de Fuca Electoral Area are represented on the patent to assume responsibility for the provision of drinking commission and participate in the service. water in the three Peninsula municipalities. The Saanich Peninsula Water System (SPWS) was constructed, and the Today, the Greater Victoria water supply area and its three CRD and GVWD entered into an agreement for the GVWD to main watersheds consist of 20,550 hectares of land, 11 provide wholesale bulk water to the SPWS. The water system dams and six reservoirs in the Sooke, Goldstream and Leech pipes connect at a point near Elk Lake in Saanich. watersheds. These lands are owned by the Capital Regional District and managed by the Integrated Water Services In 1996, the Province appointed a special commission on Department. Across the region, the CRD treats and delivers the conservation and protection of the Greater Victoria water an average of 130 million litres of water daily with almost supply. It was to make recommendations on the long-term all of it coming from the Sooke Lake Reservoir. The four provision of a sustainable water supply for Greater Victoria, reservoirs in the Goldstream Watershed (first used in 1905) addressing protection of the supply, land management and are used as a secondary water supply source. To ensure capital works and structure of governance. quality drinking water and prevent contamination, eight barriers are applied to the water supply: good water system As a result, in 1997, the provincial Capital Region Water design, protection of source water, water treatment, system Supply and Sooke Hills Protection Act came into effect. The maintenance, infrastructure replacement, staff certification Act transferred the operation of the water supply system and training, cross connection control and water quality and water distribution services from the GVWD to the CRD, monitoring and testing. along with land that was set aside for regional parkland. The Act also provided for the establishment of a Regional Water Supply Commission. All 13 municipalities of the CRD The intake tower at Sooke Lake Reservoir.
96 Shaping the Capital Region Over 50 Years 97 98 Shaping the Capital Region Over 50 Years delegations from Denmark, Australia, South Africa and the 1996 – Saanich Peninsula United States and from cities and towns across Canada. Most Wastewater Treatment Plant recently, a delegation from China’s Academy of Science visited the facility in June 2014. This technical tour was In 1994, in agreement with the Central Saanich, North arranged by the provincial Climate Action Secretariat to Saanich, and Sidney councils, the Capital Regional District showcase high profile renewable energy projects in BC. Board unanimously passed a resolution to prepare a Liquid Waste Management Plan (LWMP) for the Saanich Peninsula.
At the time, the CRD owned and operated three wastewater treatment plants on the Peninsula: in Central Saanich, in North Saanich and in Sidney.
When the CRD undertook the development of a LWMP, two of the existing plants were at capacity and required upgrading; planning began for a unified system replacing all three plants. The cost of sharing capital and operating costs in a bigger plant was less expensive than the operating costs alone in the older treatment plant that had capacity and no debt. After an extensive siting exercise, construction of the Saanich Peninsula wastewater treatment plant began, and the new secondary treatment plant began operating in 2000.
In 2011, a heat recovery system was commissioned to Saanich Peninsula wastewater treatment plant operator. recover thermal energy from effluent and supply warm water to heat the Panorama Recreation Centre pool, reducing The Saanich Peninsula wastewater treatment plant. the reliance on natural gas heating and significantly reducing the amount of greenhouse gas emissions from the centre.
The heat recovery system has gained considerable international attention and received awards from both the Union of BC Municipalities (Best Practices, Honourable Mention in 2011) and the Federation of Canadian Municipalities (Sustainable Community Award Energy Category in 2013). Since 2012, over 50 technical, educational and governmental groups have studied the system including
The Saanich Peninsula wastewater treatment plant project team waving to the camera after the completion of the project.
Chapter Four: Regional Growth – 1996-2005 99 100 Shaping the Capital Region Over 50 Years 1998 – Water Testing Laboratory Until 1998, limited drinking water quality testing was being carried out in the regional water supply service. It was assumed the drinking water was clean because it came from a protected area and there had been no quality issues since the Sooke Dam was erected in 1915. This perception was challenged in 1998 when a flow of Leech River water went through Deception Reservoir into the main Sooke reservoir causing serious taste and odour problems in the water supply.
A subsequent inquiry led to the opening of the first water quality branch, which was located temporarily at Glendale Hospital and then moved to a house next to the watershed gate in Langford.
In May 2002, a new earthquake-resistant water quality laboratory opened in View Royal at the water operations headquarters at a cost of $3.4 million. At that time, 7,000 samples were being analyzed annually, resulting in 40,000 tests. Today, the Capital Regional District processes both drinking water and non-drinking water samples, collecting 30,000 samples annually. The water is tested each day for bacteria, turbidity (cloudiness), taste, odour and chlorine.
The CRD water quality lab, established in 1998, collects and tests 30,000 water samples annually.
Chapter Four: Regional Growth – 1996-2005 101 The largest park reserve in the region, the Sooke Hills provides a buffer to the Regional Water Supply Area. Photo: Calypso Orchid goo.gl/gjiEQ5
picturesque Sooke Hills Wilderness, the Sea to Sea parklands, 1999 – District of Sooke and Ayum Creek Regional Park Reserves. The municipality Sooke was incorporated on December 7, 1999. It is a fast- has an abundance of parks, including Sooke Potholes and growing municipality that saw its population increase by Kapoor Regional Parks, and many other community and almost 18 percent between 2006 and 2011, a trend that municipal parks. continues as more and more people discover its many charms. It is situated in the far west of the capital region, Sooke has a thriving arts scene and hosts the renowned about a 50-minute drive from downtown Victoria. Its name Sooke Fine Arts Show annually. It is also the home of the is derived from the T’Sou-ke Nation on whose traditional Sooke Philharmonic and Sooke Choir. Recreational facilities territory the municipality sits. This Coast Salish Nation include the SEAPARC Leisure Complex, which is owned and continues to live and thrive at the mouth of the Sooke River. operated by the Capital Regional District.
Sooke’s popularity as a scenic tourist destination has The District of Sooke has a population of 11,435 existed for generations as the municipality is home to the (Statistics Canada 2011 census).
102 Shaping the Capital Region Over 50 Years The Juan De Fuca Electoral Area boasts a magnificent view of the Olympic Mountains and the Juan de Fuca Strait.
1999 – Juan de Fuca The southern half of Discovery Island is a provincial marine park; Electoral Area the northern part of Discovery Island, Chatham Island and the nearby islets are part of the Songhees First Nation reserve lands. When the District of Sooke incorporated in 1999, the remainder of the Sooke Electoral Area was amalgamated Juan de Fuca Electoral Area makes up over two-thirds of total with the remainder of the Langford Electoral Area to form Capital Regional District lands on southern Vancouver Island. the Juan de Fuca Electoral Area. The Juan de Fuca Electoral This area is known for its natural beauty and features rugged Area communities include East Sooke, Shirley/Jordan River, coastlines, beautiful beaches, high bluffs, forested mountain Otter Point, Willis Point, Malahat and Port Renfrew (covering areas and pastoral farmland. The area abounds with parks, 1,502 square kilometres), as well as Chatham and Discovery trails, campsites and substantial tracks of undeveloped land. Islands, which lie off the east coast of Victoria near Oak Bay. It is home to bear, cougar, elk, bald eagles and a wide range The electoral area also includes, for the purposes of servicing of other wildlife. only (there is no jurisdictional oversight), the reserve lands of Songhees, Esquimalt, Scia’new (Beecher Bay), T’Sou-ke and The Juan de Fuca Electoral Area has a population of 4,351 Pacheedaht First Nations. (Statistics Canada 2011 census).
Chapter Four: Regional Growth – 1996-2005 103 104 Shaping the Capital Region Over 50 Years 2000 – Arts Development The Capital Regional District has increasingly recognized the importance of arts and culture in the region since becoming involved almost two decades ago.
Arts development in the capital region has its roots as far back as 1958 when the four core municipalities — Esquimalt, Oak Bay, Saanich and Victoria — established the Greater Victoria Inter-Municipal Committee (IMC). In 1988, the IMC engaged a consultant to study the issue of a broad arts policy in Greater Victoria. Between 1989 and 1992, following the presentation of the report, the first Greater Victoria arts manager was hired and a Greater Victoria Arts Commission was established.
In 1998, the commission presented a paper regarding CRD involvement in the arts, and two years later, the responsibility Pacific Opera Victoria’s original production of Richard for arts programming and policy development was transferred Strauss’s Capriccio. to the CRD. The commission was retained as an advisory body under the CRD structure, and operating grant and special project Victoria, Saanich, Oak Bay, Esquimalt, Metchosin, Highlands, grant funding levels were increased significantly. A series of Sidney and View Royal. It is responsible for overseeing policy for increases was set at $250,000 per year for a period of five support and development of the arts in the region in accordance years. In 2005, the commitment of increases was completed, with the adopted goals. The Arts Committee is responsible bringing the level of operating funding to approximately $1.7 for reviewing and ratifying recommendations on policy or million and project funding to $75,000 annually. programs brought forward by the Arts Advisory Council, which was established by a CRD bylaw to enable, “an independent In June 2001, at the request of municipal councils, an arts community-based body to provide advice to the CRD on matters service was established by CRD bylaw for the “provision of relating to the arts service.” assistance in relation to the arts and culture for the purpose of benefiting the community or an aspect of the community.” The CRD Arts Development Division currently provides funding support to arts organizations on behalf of eight Today, the CRD Arts Committee is composed of elected municipalities in the capital region: Victoria, Saanich, Oak Bay, officials appointed by the CRD Board Chair. It consists of one Esquimalt, View Royal, Metchosin, Highlands and Sidney. The representative from each contributing municipality, currently CRD retains fiscal and regulatory authority for the service and liaises with other levels of government, non-government The Victoria Flamenco Festival presents free performances organizations and the public to provide information related to by local, provincial and international artists in the City’s the CRD’s support of the arts. Centennial Square
Chapter Four: Regional Growth – 1996-2005 105 2000 – Parks Land Acquisition Fund Parks was one of the three areas of responsibility contained in the letters patent that established the Capital Regional District. Initially, the powers were limited to the acquisition of land and the undertaking of any maintenance necessary for the preservation of such land.
In 2000, a number of municipalities held non-binding referendums to gauge community support for parks land acquisition. Through the referendum process it was found that residents recognized the important role parks play within the community. Residents endorsed a levy for parkland acquisition, and the Regional Parks Land Acquisition Fund was established. Through an average annual household tax (levy) of $10, the fund generated $1.6 million in its first year.
In 2010, the funding was extended for a further 10 years with an average household assessment starting at $12 and set to increase by $2 per year to a maximum of $20 in 2014. The fund allows the CRD to purchase land that could potentially be used for regional parks as identified in the Regional Parks Master Plan and the subsequent Regional Parks Strategic Plan.
Over the years, the CRD and its partners have purchased approximately 4,500 hectares of land at a cost of nearly $48.5 million. The fund generates $3.7 million annually.
The fund is one of the CRD’s most important historical milestones as it allows the continued purchase of parkland for the capital region’s growing communities and for future generations to enjoy.
Sandcut Beach was acquired through the Regional Parks Land Acquisition Fund and community fundraising. Photo: Sylvan Mably
106 Shaping the Capital Region Over 50 Years Photo taken at summit of Empress Mountain. The view shows Mount Manuel Quimper on the very left, East Sooke, Sooke Basin, Juan de Fuca Strait and Olympic Mountains. Photo: Rich Mably
transition from urban settings to wilderness domains. It 2000 – Sea to Sea Regional Park offers people the opportunity to experience nature in its Reserve & Sea to Sea Green purest form and to explore an environment featuring natural systems unique to southern Vancouver Island. The CRD is Blue Belt committed to safeguarding the ecological integrity of this unique landscape in perpetuity. Established in 2000, the Sea to Sea Regional Park Reserve is a large wilderness area nestled in the Sooke Hills. It lies The reserve is part of the Sea to Sea Green Blue Belt, a within the traditional territories of the T’Sou-ke and Scia’new 10,200-hectare corridor of protected green space that (Beecher Bay) First Nations. Over generations, the land links Saanich Inlet in the east to Juan de Fuca Strait in the has been used by First Nations peoples for food, medicine, west. The Sea to Sea Green Blue Belt is an integral part of spiritual purposes among other activities. Others have used the vision of the Regional Parks Land Acquisition Fund and the land for recreation and resource extraction. It is a habitat will eventually encompass 11,000 hectares of protected for bears, wolves, cougars, birds, salmon and rare plants such wilderness and parkland, becoming the largest protected as the calypso orchid. area in the capital region. Over 90 percent of the proposed belt is provincial, regional and municipal parkland. These The reserve is an important element in the Capital Regional lands, along with watershed lands, help protect the region’s District’s vision of an integrated network of regional parks water supply, conserve biodiversity and provide outstanding and trails providing residents and visitors with a seamless recreational opportunities.
Chapter Four: Regional Growth – 1996-2005 107 108 Shaping the Capital Region Over 50 Years official community plans and partnerships were envisioned 2001 – Lochside Regional Trail for the purpose of developing and maintaining the trail. The A Trail Management Plan was approved in 2001 and 2000 Regional Parks Master Plan, developed through an agreements were established allowing the Capital Regional extensive three-year public consultation process, outlined the District to build and operate the Lochside Trail as a regional vision, objectives and management direction for a regional trail, working in co-operation with the municipalities and trail system. the Ministry of Transportation and Infrastructure. The CRD worked to get a regulation in place from the Province to At that time, the CRD’s role was to advocate, coordinate build the trail because it could only buy land and needed and co-operate with public agencies, municipalities or the right to use road rights of way and leases in order to private organizations to establish and operate the trail complete the trail. system. One of the strategic directions was to complete the Lochside Regional Trail and provide opportunities for The Lochside Regional Trail travels over a picturesque former outdoor recreation use from Swartz Bay to the Galloping rail bed. Beginning in 1917, this Canadian Northern Pacific Goose Regional Trail. The various municipalities developed Railway (CNPR) route hosted a daily 74-passenger General their respective sections of the Lochside Regional Trail. The Electric gas car that transported passengers and freight curving 288-metre Blenkinsop Trestle, completed in 2000, between Victoria and a steamship dock at Patricia Bay filled in the last major gap in the Lochside. The trestle is built in North Saanich, with a connecting service to the Lower over the remnants of a trestle bridge constructed in 1915 Mainland. The fare was three cents per mile one way or five by the CNPR. cents return. Today, the Lochside Regional Trail is both a popular Passenger service continued until the 1920s, when stiff commuting route and the perfect way to enjoy a leisurely competition from motorcars, buses and other railways forced Sunday ride through the Saanich Peninsula farmlands. This the CNPR into bankruptcy. The Canadian National Railway scenic multi–use trail stretches from Swartz Bay to Victoria, took over, operating freight trains on the line until the 1930s. past beaches, farmland and wetlands, down country lanes Freight continued to rumble along a spur line past Swan Lake and alongside suburban backyards. until 1990.
In 1988, the official Regional Parks Master Plan included a proposal for a 225-kilometre regional trail route from Swartz Bay in North Saanich to Point-No-Point in the Juan de Fuca Electoral Area, part of which included the 29 kilometres that later became the Lochside Regional Trail. At the time, municipalities were asked to include the regional trail in their
The Lochside Regional Trail is both a popular commuting route and the perfect way to enjoy a leisurely Sunday ride through the Saanich Peninsula farmlands.
Chapter Four: Regional Growth – 1996-2005 109 In 2002, the dam at Sooke Lake Reservoir was raised six metres, which doubled water storage levels.
Sooke Lake Reservoir is 8.3 kilometres long, with a maximum 2002 – Sooke Lake Reservoir width of 1.6 kilometres, a maximum depth of 75 metres and Raised a total volume of 160.3 million cubic metres. Of that volume, 92.7 million cubic metres can be used for supplying drinking The regional water supply area is located northwest of water. The Sooke Dam is 20 metres high and 530 metres the City of Victoria in the Sooke Hills and supplies water to long. The current reservoir spillway is 186.75 metres above approximately 350,000 people in Greater Victoria. sea level.
Sooke Lake Reservoir is the primary reservoir in the water Water accumulated by the reservoir in winter is needed to supply system, providing about 90 percent of total water storage. maintain the drinking water supply throughout the year. In It is a combination of a natural lake basin and reservoir winter, the inflow to Sooke Lake Reservoir from precipitation created by flooding portions of the surrounding watershed. greatly exceeds outflow, but Victoria’s dry summers cause The reservoir was created between 1913 and 1915 by the a change. From approximately April to October, outflow construction of a 3.7-metre dam on Sooke Lake at the head of the Sooke River. exceeds inflow, and the reservoir level declines. The rate of decline is a direct result of the amount of water used by Since then, it has undergone various upgrades to meet residents. evolving drinking water and fire protection demands. Originally 3.7 metres high, flashboards were added in 1967 Typically, the use of water in the Greater Victoria area to the spillway, which increased the water level by 1.2 during summer months is twice as much as the winter metres. Three years later, a larger dam was built behind months, which results in lowering water levels in the Sooke the original one, raising the reservoir level by a further 5.4 Lake Reservoir by four metres. The Capital Regional District metres. In 2002, the dam was raised by another six metres, regularly posts photos on its website of the water level on doubling the size of the 1970 dam. Sooke Lake Reservoir and one of its tributary streams as a way to share this information with the community.
110 Shaping the Capital Region Over 50 Years 2003 – Regional Growth Strategy The Regional Growth Strategy (RGS) was adopted by the Capital Regional District Board on August 13, 2003, as a way to provide a regional perspective on future growth planning. The purpose of the RGS under Part 13 of the Local Government Act is to “…promote human settlement that is socially, economically, and environmentally healthy and that makes efficient use of public facilities and services, land and other resources.” A regional growth strategy expresses how communities have agreed to work together to enhance the region’s quality of life and social well-being.
The RGS was the result of six years of public and intergovernmental discussion and consultation, undertaken through the Foundations for Our Future process, initiated in 1996 by the CRD Board in partnership with its municipalities and electoral areas, excluding Salt Spring Island and Southern Gulf Islands. Central to the RGS was the Framework for Our Future Agreement, which set out a regional vision The Regional Growth Strategy is developed through collaboration incorporating the goals of local official community plans and consultation with residents, business and local governments. and the Regional Green Blue Spaces Strategy. The vision expressed a desire for an economically vital region where natural processes that sustain life and, at the same time, communities are livable, where the environment and natural support social and economic arrangements that create resources are stewarded with care and where residents prosperity and well-being. The purpose of the RGS was, enjoy a healthy and rewarding quality of life. Fundamental and is, to help realize this vision through a commitment to to this vision was a commitment to work toward regional guide regional growth and change toward common goals. sustainability. This commitment is made by the CRD, its municipalities and the Juan de Fuca Electoral Area. The RGS was developed through a process of political summits and council reviews. Agreement was sought at key At present, local First Nations governments are not partners decision points throughout its development. in the RGS; however, Songhees Nation demonstrates support for the RGS through a taxing agreement with the CRD where The guiding principle behind the framework was they tax non-band residences on behalf of the CRD for the that actions taken to meet today’s needs should not RGS service. The RGS also does not apply to Salt Spring Island compromise the ability of future generations to meet their and Southern Gulf Islands Electoral Areas, which fall under needs. Any actions should ensure the ongoing health of the the planning jurisdiction of the Islands Trust.
Chapter Four: Regional Growth – 1996-2005 111
In accordance with the provincial legislation contained 2004 – Ultraviolet Water under Part 25 of the Local Government Act, all 13 Disinfection System municipalities in the Capital Regional District must agree to the Regional Growth Strategy (RGS) before Serious outbreaks of cryptosporidium infection in the it can be adopted as a bylaw. To put this level of water supplies of Walkerton, Ontario, and North Battleford, agreement in perspective, the requirement for Saskatchewan, in 2000 and 2001 spurred the Vancouver unanimous municipal approval is more stringent than Island chief medical health officer to order the construction requirements to amend the Canadian constitution. of a UV plant in the capital region. Funding came in equal parts from the Capital Regional District and the provincial and In 2016, the RGS was being reviewed as part of a federal governments. provincially mandated process that must occur every five years. This review considers how to address UV disinfection is a treatment process that requires no the impacts of climate change within the context of chemicals and leaves no residual effects that can be harmful regional growth management. The update is being to humans or aquatic life. It was added to the CRD water undertaken through a collaborative process of public treatment system in 2004, which was the largest plant of its input, political summits and council reviews. kind at a time when only 35 out of 3,500 water treatment systems in BC were equipped with UV disinfection.
The CRD disinfects water from its supply reservoirs using a system that initially uses UV light, which essentially kills bacteria, viruses and parasites such as Giardia and Cryptosporidium. The water is then treated with chlorine followed by ammonia, which forms chloramine, a residual disinfectant that protects water as it travels through the distribution system.
The primary water treatment plant is located at Japan Gulch near the Goldstream River in the southeast portion of the Regional Water Supply Area; a second plant on Sooke River Road treats water piped to Sooke.
In 2004, the CRD established an ultraviolet drinking water disinfection plant at Japan Gulch.
112 Shaping the Capital Region Over 50 Years 113 Hartland gas utilization facility
gas utilization facility in partnership with Maxim Power and 2004 – Hartland Landfill BC Hydro. The facility converts landfill gas to green electricity. Gas Utilization The total capital cost for the project was $2.7 million, including all design, equipment, installation and commissioning One component of operating a landfill is managing the gas it components. produces. Landfill gas is primarily made up of methane and carbon dioxide, both of which are greenhouse gases (GHG). In 2013, the CRD acquired full ownership of the facility, In order to reduce the GHG emissions from the Hartland site, providing it with the opportunity to maximize the value reduce odours and improve health and safety conditions, a associated with the gas generated at the landfill site. The landfill gas collection and enclosed ground flaring system was equipment is maintained by a contractor and the electricity installed in 1998 as part of the closure of the Phase 1 area generated at the facility is sold to BC Hydro under a long- at the site. Although the flare was destroying the methane term agreement. With a 65.9 percent capture rate in 2015, component of the landfill gas, the energy in that gas was not the amount of landfill gas captured was capable of producing being utilized. enough energy to power 1,100 homes. The CRD strives to optimize landfill gas production with a 75 percent capture rate In February 2004, the CRD commissioned the Hartland landfill by 2016.
114 Shaping the Capital Region Over 50 Years 2006 – Sooke Potholes The Sooke Potholes Regional Park is very popular with locals for camping, picnicking, swimming, fishing and hiking. It was established in 2005 as a result of a partnership between The Land Conservancy of British Columbia (TLC) and the Capital Regional District through the purchase of 63.5 hectares of land along five kilometres of the Sooke River. The property was previously known as Deer Trails and had been the subject of several abandoned development projects. In 2014, the TLC and CRD purchased lands neighbouring the potholes for $3 million, creating a regional park managed by the CRD and a campground managed by the TLC.
In 2015, under pre-existing agreements, the TLC transferred the lands to the CRD. The Sooke Potholes is known as KWLUCHN (Spring Salmon Place) to the T’Sou-ke people, the place where the spring salmon give themselves back to mother earth. The CRD partnered with the T’Sou-ke First Nations to operate the campground, providing economic development opportunities and reconnection for the salmon people to these important lands and waters.
Sooke Potholes Regional Park is a swimmers’ paradise where visitors go to enjoy the views, explore the trails or take a refreshing dip on a hot summer day. Photo right: Province of British Columbia goo.gl/FkezOI. Photo below: Kyle Pearce goo.gl/Jv14Y8
Chapter Four: Regional Growth – 1996-2005 115 cost the Capital Regional District $1.8 million over three years 2006 – Hazardous Materials to set up its own 24-member hazmat rapid response team. Response System To reduce costs, the CRD partnered with the City of Surrey under a five-year agreement to provide hazmat response and Established in 2006, the hazmat response service provides train the CRD’s firefighters. Under the agreement, the CRD a system for the timely response to hazardous materials also purchased all of the equipment and hazmat truck. The (hazmat) emergency incidents in the capital region. A formal collaboration provided the CRD with the specialized hazmat feasibility study conducted in 2004 indicated that it would response it required but in a more cost-effective manner.
In 2005, the CRD and the City of Surry won the Union of BC Municipalities’ Community Excellence Award (Best Practices) for an innovative proposal to have the City of Surrey provide hazardous materials response to the CRD.
116 Shaping the Capital Region Over 50 Years Over 60 fire fighters representing departments from throughout the region are trained as hazmat response technicians.
The CRD has developed an efficient model for hazmat with the responsible party, or the Ministry of Environment, response, which synchronizes with the Province’s existing the local department has the ability to draw on regional protocols through the Ministry of Environment to provide resources, including equipment and technicians to mitigate added safety for life, property and the environment in the the situation. case of a dangerous goods spill. The CRD Planning, Transportation & Protective Services A strong partnership between the CRD and the Greater Committee works in co-operation with the GVFCA Policy Victoria Fire Chiefs’ Association (GVFCA) has allowed for Group and the Operational Working Group to provide the development of efficiencies in the hazmat program in operational support and administration of the regional the capital region. The CRD now provides a central store of Emergency Hazardous Materials Response team, in specialized equipment, currently housed and maintained by partnership with the capital region’s fire departments. the Central Saanich Fire Department. 2006 – Official Opening of Fisgard Building The hazmat response program is truly regional, drawing from the expertise and dedication of all fire departments within In 2006, the CRD completed the move from its Yates the CRD. Over 60 firefighters, representing departments Street building to 625 Fisgard Street. The official from throughout the region, are trained as hazmat response opening was held on November 6, 2006. The building technicians. Basic levels of training have also been provided is LEED Gold certified and boasts many sustainable to a large percentage of fire responders. If a hazmat spill features, including a green roof and a living wall. This is occurs, the local fire department will send a crew to identify an example of the CRD’s commitment to environmental and assess the situation and secure the area. After consulting sustainability.
Chapter Four: Regional Growth – 1996-2005 117 118 Shaping the Capital Region Over 50 Years A view of the Southern Gulf Islands from Mount Doug in Saanich. Photo: iStock.com/Christa Brunt
119 120 Shaping the Capital Region Over 50 Years CHAPTER FIVE: A Sustainable Future – 2006-2015
Harbour taxis have been transporting residents and visitors around the Victoria Harbour for over 25 years. They have transported more than 3 million passengers to 14 different stops in and around the Victoria Harbour.
A view of Brentwood Bay from the top of the Malahat.
he last 10 years have seen the Capital Regional District Engagement was set up to explore options and gauge (CRD) play an increasingly important role in transportation, interest in determining ways to bridge the gap in regional Twhile maintaining an active role in protecting the region’s governance. water supply. On the environmental front, an organic waste diversion program was launched and restoration began on the An important milestone was the Regional Transportation recently purchased Leech River Watershed lands. Planning for Plan, which set out a strategic vision for transportation the E&N Rail Trail began in 2007, and the completed trail will over 25 years that ensures all modes of travel, along with eventually provide another link between downtown Victoria planning efforts among the CRD’s local governments, and the western municipalities. are integrated to effectively meet future travel needs and sustainability commitments at local and provincial An Aboriginal Initiatives Division within the CRD was created levels. Allied to this, the Pedestrian & Cycling Master Plan with the purpose of finding ways to identify common areas identifies guidelines, policies and standards for providing of interest along with opportunities to build relationships universal pedestrian accessibility, bicycle and pedestrian and foster co-operative decision-making with First Nations. trip enhancement facilities such as bicycle parking and Building on that vision, a Special Task Force on First Nations integration with transit.
Chapter Five: A Sustainable Future – 2006-2015 121 The CRD’s work in the city of Ho, Ghana, is an example of how 2006 – Capital Regional District something as basic as mapping and naming streets can make Goes International a big difference. Giving residents lot numbers and addresses made it easier for emergency services to navigate, while the Since 2006, the Capital Regional District has been involved street naming system meant citizens and businesses are now in the Federation of Canadian Municipalities (FCM) paying property tax from an updated tax roll. With the CRD’s international programs and has participated in a number support, Ho increased its revenue collection more than fortyfold. of different collaborative projects including work in China This has translated into more municipal projects in priority areas related to migrant labour rights, municipal revenue such as public sanitation. generation in Ghana, local economic development in Tanzania and, most recently, assisting with planning The CRD was selected to receive the FCM 2014 Award for work in Peru. Outstanding International Volunteer Contribution in the institutional category.
The CRD welcomed a delegation from the Ho and Suhum communities in Ghana. From left: Mayor Mensah, Assemblywoman Gladys Bukar, Program Coordinator Elias Mensah, CRD General Manager Diana Lokken, Mayor Goh, CRD Director Denise Blackwell, Program Coordinator Johnathon Klu, Assemblyman Victor Obohbi (behind).
122 Shaping the Capital Region Over 50 Years Backyard composting is great for the environment. It generates healthy soil and diverts organic materials from the landfill.
In 2007, over 4,000 residents in Oak Bay and View Royal 2007 – Organics Management & started separating kitchen scraps from their household Kitchen Scraps Diversion Strategy garbage as part of a pilot program. This pilot program for organic waste collection was a major success, resulting in the Diversion of kitchen scraps saves valuable landfill space and diversion of 827 tonnes of kitchen waste. In 2010, a waste reduces the region’s disposal rate. Kitchen scraps include composition study identified that organic materials made up meat, bones, grains, dairy products, eggs, vegetables, fruits 30 percent of the waste disposed at Hartland landfill. Based and soiled paper products. on these results and following on the success of the pilot
Chapter Five: A Sustainable Future – 2006-2015 123 program, the Capital Regional District launched the Regional Kitchen Scraps Strategy in 2012.
The initial phase of the strategy included an incentive to waste haulers, which resulted in 15,000 tonnes annually of compostable material being diverted from Hartland landfill. As well, over 1,000 food waste digesters were distributed during this time to residents in rural areas and on the Southern Gulf Islands, at a subsidized price. The final phase of the strategy included the implementation of a landfill disposal ban on kitchen scraps in 2015.
The kitchen scraps ban saves space in the landfill and helps increase diversion and reduce the disposal rate. Regional greenhouse gas (GHG) emissions that contribute to climate change are also being reduced. Kitchen scraps processing creates valuable resources, such as compost and/or biogas.
Crew at the sorting table analyze the residual solid waste stream.
Capital Regional District residents participate in a national compost week parade.
Often planted on public or formerly abandoned land, community gardens offer hands-on learning for the regions residents.
124 Shaping the Capital Region Over 50 Years for $3 million from Western Forest Products as part of a 2007 – Purchase of Leech larger purchase that included a substantial acquisition of land River Watershed for regional parks. The purchase protected an additional 384 hectares of the watershed, including Weeks Lake. In 2007, the Capital Regional District Regional Water Supply Commission and the CRD Board made a decision to acquire Over the years, the lands have been owned by forest the Leech River Watershed. In December of that year, the companies that harvested about 95 percent of the area. CRD purchased 8.971 hectares of the watershed for $59 The CRD is undertaking an extensive watershed restoration million, bringing the total area of land dedicated to water program in the harvested areas to prepare the lands for supply to nearly 20,000 hectares. Although it is estimated future water supply needs. that the Leech Water Supply Area will not be required for several decades, the acquisition secured and protected the With acknowledgment that there is very little Crown land drinking water supply catchment lands for future generations. in the region on which First Nations can exercize Aboriginal and Treaty Rights, the CRD and T’Sou-ke First Nation (in In August 2010, the CRD took ownership of an additional 832 whose traditional territory the lands reside) co-developed a hectares of land in the watershed. The land was purchased traditional cultural and ceremonial access agreement in 2016
In 2007 and 2010, the CRD purchased land in the Leech River Watershed, bringing the total water supply area land to nearly 20,000 hectares.
Chapter Five: A Sustainable Future – 2006-2015 125 126 Shaping the Capital Region Over 50 Years for the Leech watershed lands. Through protocols, similar and electoral areas by acting as a resource and facilitator access agreements will also be extended to neighbouring on climate change issues. The program directly supports First Nations. stakeholders through five important roles: assisting local governments in developing and It is estimated that the Leech River will be needed to • implementing emissions reductions and climate supplement water in Sooke Lake Reservoir sometime adaptation policies, plans and programs under their within the next 50 years. The exact timeline will depend on community and corporate portfolio population growth and how successful the region is in terms of water conservation. When the time comes, water from • providing scientific information, data and indicators the Leech River will be transferred to Sooke Reservoir using a related to local and regional greenhouse gas emissions diversion tunnel. and projected climate impacts for the capital region
• increasing public awareness of climate change issues and catalyzing action through partnerships with public 2008 – Climate Action Service and private sectors, non-governmental and community Local governments play an integral role in reducing the organizations emissions of today and planning for the climates of • liaising with senior levels of government on climate tomorrow. In 2008, through the Local Government (Green change related programs, policies and legislation that Communities) Statues Amendment Act, local governments impact the capital region were provided with additional powers to support community climate mitigation and adaption. The legislation also required • supporting the CRD in fulfilling its corporate climate local governments to include targets, policies and actions for objectives, including the climate-related CRD Board the reduction of greenhouse gas (GHG) emissions in regional strategic priorities growth strategies and official community plans.
At the same time, local governments in the region, including the Capital Regional District, signed the BC Climate Action Charter, thereby committing to measuring, reducing, offsetting or balancing, and reporting on annual emissions from corporate operations. The CRD set a target to reduce corporate GHG emissions by 33 percent from 2007 levels by 2020.
To meet these commitments, the CRD’s climate action service program was developed in 2008 through the Climate Action and Adaptation Service Establishment Bylaw. The program serves the capital region’s municipalities
A local family with their newly installed heat pump. The Oil to Heat Pump Incentive Program is one of many CRD initiatives that encourages residents to save money.
Chapter Five: A Sustainable Future – 2006-2015 127 128 Shaping the Capital Region Over 50 Years 2008 – Salt Spring Island Transit Bus service was established on Salt Spring Island in January 2008. In its first year of service, ridership was twice what was predicted. In 2009, the Salt Spring Island transit system was awarded the Exceptional Service with Outstanding Performance award from the Canadian Urban Transit Association.
Salt Spring Island Transit has six routes running daily, with extended service during summer months. The service has a charming informality in that many areas do not have designated bus stops. Islanders and visitors simply wave down a passing bus at locations where visibility is good and where the driver can pull off the road safely. In the same way, passengers ask the driver to find a safe place to stop close to their destination.
The Salt Spring Island Transit System is often cited by BC Transit as a model for successful small-scale, localized transit.
A bus stops in Ganges Village on one of the six Salt Spring Island routes. Photo: BC Transit/J. Cameron
Chapter Five: A Sustainable Future – 2006-2015 129 130 Shaping the Capital Region Over 50 Years 100 kilometres of regional trails, which includes the Galloping 2009 – E&N Rail Trail-Humpback Goose and Lochside Regional Trails. Connector In 2010, the Province of British Columbia and the Construction started in 2009 on the E&N Rail Trail-Humpback Vancouver Organizing Committee for the 2010 Olympic Connector, a cycling and pedestrian regional trail that will and Paralympic Winter Games partnered together eventually provide an additional link from downtown Victoria to create an Olympic legacy providing permanent to the Westshore (the communities of Metchosin, Langford, affordable rental apartments for people most in Colwood, View Royal and Highlands). Built largely within need across BC. As part of this initiative, temporary the E&N rail corridor, it travels through Victoria, Esquimalt, modular housing units from the Olympic Games were Songhees First Nations, View Royal and Langford. By 2016, reconfigured into 36 permanent, affordable apartments 10 kilometres had been constructed and were open to the for individuals who were homeless or at risk of public. Built in phases as funding becomes available, the trail homelessness in Saanich. The Capital Region Housing will be 17 kilometres long when complete. It is part of the Corporation provided the land, valued at $1.15 million, and the Victoria Cool Aid manage and operate the The E&N Rail Trail is the capital region’s newest pedestrian and units, now called Olympic Vista Apartments. bicycle thoroughfare.
Chapter Five: A Sustainable Future – 2006-2015 131 132 Shaping the Capital Region Over 50 Years The vision is that, by 2038, the CRD will be lauded for its 2011 – Pedestrian & Cycling active transportation numbers: cycling being 25 percent in Master Plan urban areas, 15 percent region-wide and 15 percent for pedestrian travel. The Pedestrian & Cycling Master Plan (PCMP) describes a strategic approach for achieving a significant shift in In December 2012, the CRD was awarded a grant through transportation throughout the region. the Government of Canada’s Gas Tax Fund Transfer Program for a PCMP Implementation Pilot Project. The two-year The capital region has a healthy walking community and program began in spring 2013 and featured a comfort- some of the highest cycling numbers in the country. Through based bicycle rider’s map, an innovative infrastructure the implementation of the PCMP, pedestrian facilities are funding stream and a local government training and being upgraded in priority locations and cycling facilities are development program. being built for residents of all ages and abilities. In 2013, the CRD focused its active travel planning efforts Because every municipality has an acknowledged on Salt Spring Island. A collaborative planning process, with commitment to accommodating multi-modal transportation input from staff and volunteers involved in transportation, in their official community plans and other strategic produced the PCMP: Salt Spring Island. Similar to its parent documents, the Capital Regional District and members document, the plan emphasized engineered and educational are well-positioned to make reality significant shift to solutions to encourage active travel on the island. Closely active travel. linked to the island’s economic development efforts, this version of the PCMP provided a basis for investment and The PCMP identifies an inter-community cycling and provides partnership among a number of agencies. guidelines for providing accessible, attractive and effective transportation infrastructure. Emphasis is focused on bicycle In 2016, the CRD launched the People Power program to and pedestrian trip enhancement facilities, such as bicycle continue PCMP implementation across the region. Using parking and integration with transit. a collective impact approach, the program focuses on integrating safe active travel into everyday life. Notable The plan also recommends encouragement, education and projects include the Active and Safe Routes to School enforcement programs to support the cultural shift to active Program, New Routes – Active Transportation for Newcomer, transportation as well as an evaluation system to measure it. and Nature on the Move.
The CRD bike counts gather data necessary for active transportation planning.
Chapter Five: A Sustainable Future – 2006-2015 133 2013 – Aboriginal Initiatives Division Established In 2013, the Capital Regional District’s Aboriginal Initiatives Division was established to provide support to the CRD Board in achieving its strategic goal of building strong relationships with First Nations. The division also provides support to other CRD divisions with referral outreach, developing and maintaining service agreements, undertaking joint initiatives, and overall engagement on major regional plans, strategies and regional-specific interests.
The CRD Board is interested in more than simply meeting legislative requirements around First Nations engagement. It recognizes that greater collaboration with First Nations will provide ways to identify common areas of interest and opportunity, build relationships and foster mutually beneficial co-operation. The CRD spans the traditional territories of 22 First Nations, of which 11 hold reserve lands throughout the capital region.
Esquimalt Nation (Chief Andy Thomas pictured) and Songhees Nation have become integral partners in the E&N Rail Trail- Humpback Connector.
134 Shaping the Capital Region Over 50 Years A key to sustainable transportation is accommodating all modes of travel. Photo: BCTransit/J. Cameron
on matters pertaining to regionally significant transportation will 2014 – Regional provide clarity to the regional vision and assist in bringing it to Transportation Plan life through the implementation of actions outlined in the RTP. On many fronts, the capital region leads the way in Canada The purpose of the RTP is to identify immediate and long- in sustainable transportation and sustainable development. term priorities and strategies that will guide planning and The region enjoys a healthy urban core, walking and cycling development of a regional multi-modal transportation system per capita have traditionally been higher than in any other that meets future growth demands in a sustainable way. The major city in Canada, and transit use is higher than in plan sets out a strategic vision for transportation over 25 years comparable urban areas. and is closely linked with initiatives in the Regional Growth Strategy. Considering transportation planning at a regional Transportation continues to be a high priority across all levels level ensures all modes of travel, and coordinated planning of government in the region. It is commonly acknowledged efforts among the region’s local governments, are integrated across all jurisdictions that continued growth in single to effectively meet future travel needs and sustainability occupancy vehicle travel is not sustainable if the region is to commitments at local and provincial levels. maintain its enviable appeal to residents and visitors. The RTP is an action-oriented planning document. It is not The Regional Transportation Plan (RTP) has been built on this intended to address site, corridor or municipal-specific common ground and recognizes the regional interdependency issues but rather establish a set of actions that, when of transportation. The plan recognizes that building a strong implemented over time, will help the Capital Regional regional transportation system cannot be done in silos but District and municipalities achieve their goals of more requires close collaboration among all municipalities, electoral sustainable development, healthier communities, accessible areas and key partners such as the Ministry of Transportation and affordable transportation choices, and efficient mobility and Infrastructure and BC Transit. Speaking with one united voice throughout the region.
Chapter Five: A Sustainable Future – 2006-2015 135 Forum of Councils Indigenous Cultural Training session in June 2016. Foreground: Chief Jeff Jones (Pacheedaht) and Director Ryan Windsor (Central Saanich) Background: Councillor Murray Weisenberger (North Saanich) and Councillor Herman Henry (BOK´EC´EN)
136 Shaping the Capital Region Over 50 Years 2014 – First Nation Task Force Established The Capital Regional District Board has long acknowledged the importance of relationship-building with neighbouring First Nations governments. With increased engagement and greater familiarity, the Board learned that there was an interest on the part of First Nations to play a greater role in decision-making processes on matters of common interest.
In 2014, the Board Chair struck a special task force, made up of three directors and the Chair as ex officio, to meet with First Nations to learn more about their ways of governing, explore the potential for collaborative decision-making and discuss options for how the regional governance framework could accommodate First Nations participation.
In 2015, Songhees and Esquimalt Nations became voting members of the Core Area Liquid Waste Management Committee. That same year, the task force met with Premier Christy Clark to discuss changes to the Local Government Act in support of First Nations representation on the CRD Board.
In 2016, the Board acknowledged the Calls to Action by the Truth and Reconcilliation Commission, beginning with a commitment to provide Indigenous culture training for local government elected leaders in the region. With greater understanding and appreciation for the impacts of historic Chief Tanya Jimmy (W_SIKEM (Tseycum) and Director and current injustices inflicted on Indigenous peoples, the Marianne Alto, Chair of the Special Task Force on First Nations Board has taken an integral step towards building stronger, Engagement. . enduring relationships with First Nations and a promising future for all. In April 2015, Panorama Recreation was announced the grand prize winner of Kraft Hockeyville 2015 and received $100,000 to fund arena improvements. It also hosted an NHL® Pre-Season Game between the Vancouver Canucks and the San Jose Sharks on September 21, 2015.
Chapter Five: A Sustainable Future – 2006-2015 137 138 Shaping the Capital Region Over 50 Years The Mill Bay-Brentwood Bay ferry transports passengers across the Saanich Inlet, connecting the Capital Regional District and Cowichan Valley Regional District.
139 140 Shaping the Capital Region Over 50 Years CHAPTER SIX: Core Services Today, Looking to the Future
he CRD has more than 200 service and sub-service operating and maintaining transmission systems and infrastructure and financing agreements with investing in infrastructure replacement. Tmunicipalities and electoral areas to deliver local, sub- regional and regional services. The Capital Regional District’s Education, Outreach & Information (CRD) core services are summarized below. The CRD delivers programming designed to encourage Corporate & Financial Services behaviours that will ensure the continued health and sustainability of the region. This programming includes Ensuring effective service delivery is at the core of the environmental education, in-person outreach at community CRD’s central services. The CRD demonstrates leadership events, regulatory enforcement and information provision in organizational performance based on a foundation of for businesses and institutions, and partnerships within applying best practices throughout our corporate services the community to further common goals. In addition, the and ensuring effective financial and audit reporting practices. CRD has interpretive programs, nature centres and guided The CRD strives for continued advancement through ongoing activities as part of our regional parks system. The CRD also workforce education, training and development, fostering provides relevant, timely and usable data and information exceptional customer service and investing in systems that through sub-regional profiles and fact sheets to ensure the increase efficiency in their operations. The CRD also provides accessibility of regional data. services such as mapping and geospatial referencing for surveying for municipalities. Environmental Protection
Drinking Water Protecting and preserving for the benefit of both the natural environment and local residents requires the development Stewardship of the capital region’s drinking water supply and management of strategies, processes and guidelines. means careful management of the systems that bring The CRD provides scientific and technical expertise within the water from the source to the tap, ensuring safe and the organization and to municipalities and electoral areas to sustainable drinking water for today and into the future. protect the region’s environmental resources and functions The CRD is responsible for the supply of drinking water through collaboration, service provision and support. across Greater Victoria and for distributing water directly Services provided by the CRD include monitoring and to customers in several municipalities and electoral areas. assessment of the environment, climate change mitigation Delivering safe drinking water requires more than a reliable and adaptation, environmental reporting and coordination network of water pipes. It also includes protecting the of multi-stakeholder stewardship programs. source, disinfecting the water and monitoring water quality,
Chapter Six: Core Services Today, Looking to the Future 141 Environmental Resource Management trails, children’s playgrounds and recreation centres. The CRD supports new and ongoing arts activity in the region through Environmental Resource Management plans, develops and sub-regional arts development funding and community applies systems that will ensure integrated and beneficial use arts funding on Salt Spring Island. This investment supports and reuse of our resources. Instead of viewing solid waste as local arts organizations that provide employment and garbage, the CRD sees waste as a commodity and seeks the entertainment and bring provincial and national recognition highest and best use for these resources as demonstrated to our region. by initiatives such as methane gas capture and the ban on kitchen scraps from the landfill. Regional Infrastructure Community Health & Well-Being The well-being of our residents, the development of our communities and the economic growth of our region The Capital Regional Hospital District (CRHD) works to create relies on integrated systems. The CRD operates, manages a healthy region by investing in traditional health care and maintains regional public infrastructure — including services, developing health care facilities and providing recreation and regional parks facilities, housing and health capital funding for infrastructure, such as acute care and care complexes, fire halls and libraries, pump stations and hospital equipment. The CRHD and the CRD share the same pipe systems — to ensure our systems are sustainable and Board of Directors and officers. meet the needs of residents, member municipalities and electoral areas. The CRD receives significant support for the Protective Services replacement and development of infrastructure from senior government through grant programs. To ensure continued public safety, the CRD offers protective services such as bylaw enforcement, animal control and Regional Parks emergency management. Community education, mediation, fines and injunctions are tools that aid the enforcement of The CRD protects and manages more than 13,000 hectares bylaws that maintain good order, public health and safety. of spectacular and accessible natural areas in 33 regional The CRD works in conjunction with other agencies to provide parks and trails on southern Vancouver Island and the Gulf information, support and oversight to ensure a coordinated Islands. Parks and trails provide opportunities for outdoor response to regional emergencies. experiences and activities that improve personal health and well-being while fostering appreciation, enjoyment Recreation, Arts & Culture and respect for the region’s natural environments. The CRD develops and maintains park facilities, plans for future Culture and recreation in the capital region ensure a high acquisitions, restores and conserves natural resources and quality of life for citizens while providing a wide range of offers interpretive programs. participatory and audience opportunities for residents and visitors alike. The CRD owns and administers local performing arts theatres, owns and operates libraries and funds museums in electoral areas. It also develops, operates and Managing parks is only one of the many services provided by maintains multiple community amenities, including parkland, the CRD.
142 Shaping the Capital Region Over 50 Years 143 Regional Planning and surrounding marine environment. The CRD currently operates six secondary wastewater treatment plants, five of The CRD maintains a regional information database and which are located in the electoral areas. provides value-added analysis of the region’s population, development, land use, transportation, housing and employment trends. By engaging in transportation planning Looking Forward — as well as developing, implementing, maintaining and Today, the CRD continues to play a key role in providing updating a regional growth strategy — the CRD supports services that can be delivered efficiently and effectively regional sustainability and the continued quality of life for through region-wide or shared service delivery models current and future citizens. such as community parks, recreation facilities, sewer pipes, Social Housing drinking water and recycling. Over the next 50 years, the CRD will continue to work Affordable housing is the cornerstone of a healthy and collaboratively with First Nations and other levels of economically strong community. The Capital Region Housing government and have a direct relationship with individuals, Corporation (CRHC), a wholly owned subsidiary of the businesses, organizations and institutions that access regional CRD, provides low- and moderate-income families with utilities and services and with communities that collaborate safe, suitable homes that remain affordable as their lives for regional services on behalf of their residents. and families change and grow. The CRHC also provides affordable housing for low-income seniors and for people living on government disability pensions. Additionally, the CRD’s Regional Housing Trust Fund, a capital grant allocation program, assists non-profit and private housing providers in the new development of affordable housing units in the region. The CRHC Board of Directors includes four CRD Board representatives and three community members. Wastewater Management
Protecting the health of our local environment and the residents who call it home is at the forefront of regional wastewater management. The CRD works in co-operation with local municipalities, electoral areas and industry to ensure a consistent approach to stewardship and sustainability in the development of services to manage liquid wastes, septic systems and wastewater collection, treatment and disposal infrastructure across the region. Our services help to protect the local urban and rural watersheds
144 Shaping the Capital Region Over 50 Years
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