Boundary Realignment Review Project

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We listened. We are learning more. We will listen again.

In the 2014 opinion referendum, residents supported studying boundary realignment as an alternative to amalgamation. A 2019 citizen survey confirmed continued interest: 38 per cent supported exploring boundary options, 31 per cent were unsure, and 31 per cent said no. The number of undecided residents told us more information was needed. We are doing what was asked of us.

The City of Duncan has commissioned an independent technical study to explore what boundary realignment could mean for services, governance, and finances. The study will look at illustrative boundary scenarios for discussion purposes only. No decisions have been made.

This is a study, not a decision. No boundary change can happen without the support of both municipalities, local First Nations, and the Province.

View the City of Duncan's current boundaries here.


This is not amalgamation

Amalgamation merges two municipalities into one. That question was asked in the 2018 referendum, and residents gave a clear answer. This is not that.

Boundary realignment adjusts where the line is drawn between two municipalities that would continue to exist as separate, self-governing communities. Both Duncan and North Cowichan would remain independent municipalities with their own councils, staff, budgets, and identities.

We will review what we learn and only take further action if it makes sense for Duncan.


Why is the City looking at this?

Duncan's boundary with the Municipality of North Cowichan was drawn in 1912 and has not changed significantly since. Growth patterns, infrastructure, and community connections have evolved considerably in that time.

The south end of North Cowichan functions as part of Duncan in daily life but falls under a different jurisdiction for planning, bylaws, policing, and taxation. Many people living just outside Duncan may already identify as being from Duncan. Residents in this area use City of Duncan water service.

In some cases, the boundary runs through the middle of private properties, creating confusion for residents, emergency responders, businesses, and visitors.

Reviewing the municipal boundary has been a Duncan council priority for many years, and is included in the 2023-2026 Council Strategic Plan under the goal of managed growth supported by sustainable development.

In January 2026, the City wrote to North Cowichan proposing a joint technical study. North Cowichan's council declined, and Duncan is proceeding independently with its own study. Duncan respects that decision.


How the study works

The technical study is being led by Sherry Hurst, M.Pl., MCIP, RPP, of Leftside Partners Inc., an independent consultant with no interest or preference in any particular outcome. The study will examine illustrative boundary scenarios based on service areas and natural features, and assess the potential impacts on services, governance, and finances for both municipalities.

The Terms of Reference for the technical study establishes three guiding principles:


  • Mutual benefit: The intention is not to produce winners and losers, but to identify impacts that could be addressed to ensure a fair arrangement for both municipalities.
  • Impartiality: The analysis must be objective and conducted by an independent consultant. Assumptions will be documented and noted in the report.
  • Transparency: The final report will be presented in an open council meeting and made available on this website.

The review project follows a Learn, Discuss, Listen approach:

  • Learn about potential impacts of boundary realignment based on illustrative options.

  • Discuss boundary realignment as an alternative to amalgamation, using the study's findings as a starting point.

  • Listen to residents' feedback and interest in pursuing further analysis.


Advisory panel

A three-member advisory panel will provide input on the sample boundaries, analysis assumptions, and the resulting report. The panel is not a decision-making body.

The panel is made up of:

  • Two members appointed by City Council through a public call for participation
  • The City has invited Cowichan Tribes to recommend the third panelist if they choose to

Panel meetings are not open to the public. This is to allow candid discussion of technical assumptions and scenarios. The final report will be fully public.


Interested in serving on the panel? Find the application form under "Documents".


The City's commitments

Mutual-benefit principle: Any boundary change should not make either municipality worse off.

Open process: Information will be shared publicly. Residents will have the opportunity to ask questions and provide input during Phase 2 of the project, including through the City's Big Conversations online engagement platform.

A vote is required: No boundary change can happen without the support of both municipal councils and a vote by residents in both Duncan and North Cowichan. Any future change would also require engagement with the local First Nations. The Province would approve processes and any final decisions.


Timeline

The project has two phases:

Phase 1: Technical study (now underway)

  • Terms of Reference endorsed by council -- May 2026
  • Call for advisory panel members -- May/June 2026
  • Council selects advisory panel -- June 2026
  • Technical study completed -- August 2026

Phase 2: Community engagement (following study completion)

  • Study findings shared publicly at a Council meeting and on this page -- August 2026
  • Community engagement and discussion opportunities
  • Feedback collected and considered

Phase 1 is focused on the technical study. There is no public engagement during this phase. During Phase 2, the findings will be shared and residents will have the opportunity to learn about the results, ask questions, and share their feedback.


Stay informed

Visit this page for updates as the study progresses. The City will also share information through its Facebook page, and the Beneath the Clocktower newsletter.

We listened. We are learning more. We will listen again.

In the 2014 opinion referendum, residents supported studying boundary realignment as an alternative to amalgamation. A 2019 citizen survey confirmed continued interest: 38 per cent supported exploring boundary options, 31 per cent were unsure, and 31 per cent said no. The number of undecided residents told us more information was needed. We are doing what was asked of us.

The City of Duncan has commissioned an independent technical study to explore what boundary realignment could mean for services, governance, and finances. The study will look at illustrative boundary scenarios for discussion purposes only. No decisions have been made.

This is a study, not a decision. No boundary change can happen without the support of both municipalities, local First Nations, and the Province.

View the City of Duncan's current boundaries here.


This is not amalgamation

Amalgamation merges two municipalities into one. That question was asked in the 2018 referendum, and residents gave a clear answer. This is not that.

Boundary realignment adjusts where the line is drawn between two municipalities that would continue to exist as separate, self-governing communities. Both Duncan and North Cowichan would remain independent municipalities with their own councils, staff, budgets, and identities.

We will review what we learn and only take further action if it makes sense for Duncan.


Why is the City looking at this?

Duncan's boundary with the Municipality of North Cowichan was drawn in 1912 and has not changed significantly since. Growth patterns, infrastructure, and community connections have evolved considerably in that time.

The south end of North Cowichan functions as part of Duncan in daily life but falls under a different jurisdiction for planning, bylaws, policing, and taxation. Many people living just outside Duncan may already identify as being from Duncan. Residents in this area use City of Duncan water service.

In some cases, the boundary runs through the middle of private properties, creating confusion for residents, emergency responders, businesses, and visitors.

Reviewing the municipal boundary has been a Duncan council priority for many years, and is included in the 2023-2026 Council Strategic Plan under the goal of managed growth supported by sustainable development.

In January 2026, the City wrote to North Cowichan proposing a joint technical study. North Cowichan's council declined, and Duncan is proceeding independently with its own study. Duncan respects that decision.


How the study works

The technical study is being led by Sherry Hurst, M.Pl., MCIP, RPP, of Leftside Partners Inc., an independent consultant with no interest or preference in any particular outcome. The study will examine illustrative boundary scenarios based on service areas and natural features, and assess the potential impacts on services, governance, and finances for both municipalities.

The Terms of Reference for the technical study establishes three guiding principles:


  • Mutual benefit: The intention is not to produce winners and losers, but to identify impacts that could be addressed to ensure a fair arrangement for both municipalities.
  • Impartiality: The analysis must be objective and conducted by an independent consultant. Assumptions will be documented and noted in the report.
  • Transparency: The final report will be presented in an open council meeting and made available on this website.

The review project follows a Learn, Discuss, Listen approach:

  • Learn about potential impacts of boundary realignment based on illustrative options.

  • Discuss boundary realignment as an alternative to amalgamation, using the study's findings as a starting point.

  • Listen to residents' feedback and interest in pursuing further analysis.


Advisory panel

A three-member advisory panel will provide input on the sample boundaries, analysis assumptions, and the resulting report. The panel is not a decision-making body.

The panel is made up of:

  • Two members appointed by City Council through a public call for participation
  • The City has invited Cowichan Tribes to recommend the third panelist if they choose to

Panel meetings are not open to the public. This is to allow candid discussion of technical assumptions and scenarios. The final report will be fully public.


Interested in serving on the panel? Find the application form under "Documents".


The City's commitments

Mutual-benefit principle: Any boundary change should not make either municipality worse off.

Open process: Information will be shared publicly. Residents will have the opportunity to ask questions and provide input during Phase 2 of the project, including through the City's Big Conversations online engagement platform.

A vote is required: No boundary change can happen without the support of both municipal councils and a vote by residents in both Duncan and North Cowichan. Any future change would also require engagement with the local First Nations. The Province would approve processes and any final decisions.


Timeline

The project has two phases:

Phase 1: Technical study (now underway)

  • Terms of Reference endorsed by council -- May 2026
  • Call for advisory panel members -- May/June 2026
  • Council selects advisory panel -- June 2026
  • Technical study completed -- August 2026

Phase 2: Community engagement (following study completion)

  • Study findings shared publicly at a Council meeting and on this page -- August 2026
  • Community engagement and discussion opportunities
  • Feedback collected and considered

Phase 1 is focused on the technical study. There is no public engagement during this phase. During Phase 2, the findings will be shared and residents will have the opportunity to learn about the results, ask questions, and share their feedback.


Stay informed

Visit this page for updates as the study progresses. The City will also share information through its Facebook page, and the Beneath the Clocktower newsletter.

Page last updated: 29 May 2026, 05:37 PM