Boundary Realignment Review Project

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We listened. We learned more. Now we want to hear from you.

Over the years, Duncan residents told the City they wanted more information about boundary realignment as an alternative to amalgamation. This independent technical study was designed to provide that information. It looked at two sample boundaries, for illustrative purposes only, to answer one central question: could realignment address the practical issues created by the current boundary without one municipality benefiting at the expense of the other?

Based on the information available, the net financial impact on either municipality appears limited, and the study did not find that either would benefit at the expense of the other. The most noticeable impact would be for property owners in the areas that would move into the City. However, other potential subjective benefits, such as sense of place, community identity, and clearer boundaries, can't be measured in dollars. The report discusses them, and they're for residents to weigh. We welcome your feedback.

The study is complete. No decisions have been made. The consultant presented the final report at an open council meeting on September 28, 2026, and council received it for information. No boundary changes are happening as a result of this study; it was for discussion and information purposes only.

What the study found

The study looked at what boundary realignment could mean for services, finances, and governance in both municipalities. Key findings include:

  • Net financial impact is limited. Based on the information available, the study did not find that either municipality would benefit at the expense of the other. It did not find significant net impacts on the operating, utility, or capital budgets of either the City or North Cowichan.

  • Property owners joining would pay more than they do now. Property owners in the areas that would move into the City would pay more, mainly because the City’s property tax rates are higher than North Cowichan’s. If realignment were ever pursued, options such as phasing in the rates would need to be considered.

  • Results for Duncan properties are mixed. Municipal property taxes could decrease slightly, but water fees and the regional recreation portion of the tax bill would increase.

  • Little change for the rest of North Cowichan. Municipal property taxes would change very little. South End water and sewer customers who stay in North Cowichan would see slight increases in rates.

  • The City would take on more services. This includes policing, roads, drainage, flood protection, water, sewer, parks, and garbage collection in the sample boundary areas, along with more staff, equipment, and office space.

  • Representation would change. Duncan would have more residents per council member. South End residents who moved into the City would gain a vote for City council.

  • Some benefits can’t be measured. These include sense of place, community identity, clearer boundaries, and access to council. The report discusses them, and residents will weigh them differently. Decisions about local government boundaries are often based less on dollars and more on representation, local voice, and identity. Residents and their elected representatives are best placed to weigh these questions.


Study limitations

The study provides high-level results only, and the results depend on the assumptions used. Please keep these limitations in mind when reading the report:

  • North Cowichan declined to participate, so the analysis of North Cowichan relies on publicly available information only.

  • Detailed information on the condition of North Cowichan’s infrastructure and its long-term capital plans was not available.

  • The analysis is based on 2026 budgets. Further changes are expected in North Cowichan’s budget after the Domtar mill closure.

  • The study did not estimate the one-time costs of making a boundary change.


What happens next

There are no planned next steps other than gathering community feedback. The City will accept feedback until November 30, 2026 through a short survey on the City’s Big Conversations page at bigconversations.duncan.ca/boundary. A summary of what we heard will then be provided to the new council for information.

Any boundary change would first need the agreement of both councils. Without North Cowichan’s agreement, no vote takes place and no change happens. If both councils agreed to pursue realignment, it would also require a thorough engagement process with residents, affected property owners, and First Nations, a vote by electors, and approval by the Province.


Have your say

We want to hear what you think about the study’s findings.

  • Take the survey: Click the button below to share your feedback.

The City will read all feedback. We will not respond to each comment individually, but answers to common questions about the study and the process will be added to the Frequently Asked Questions.


This is not amalgamation

Amalgamation merges two municipalities into one. That question was asked in the 2018 referendum, and residents gave a clear answer.

Boundary realignment adjusts where the line is drawn between two municipalities. Both Duncan and North Cowichan would remain independent municipalities with their own councils, staff, budgets, and identities.


About the study

Why the City studied this

In the 2014 opinion referendum, 54 per cent of Duncan voters supported studying boundary realignment as an alternative to amalgamation. During the 2017 Citizens’ Assembly on amalgamation, a recurring question at public roundtables was whether there was another way. A 2019 citizen survey found 38 per cent of respondents supported exploring boundary options, 31 per cent were unsure, and 31 per cent said no. The number of undecided residents showed that more information was needed.

Duncan’s boundary with the Municipality of North Cowichan was drawn in 1912 and has not changed significantly since. 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. In some cases, the boundary runs through the middle of private properties.


How the study was done

The study was led by Sherry Hurst, M.Pl., MCIP, RPP, of Leftside Partners Inc., an independent consultant with no interest or preference in any particular outcome. It examined two sample boundaries, Scenario A and Scenario B based in service areas and natural features. The sample boundaries are for illustrative purposes only. They are not proposed boundaries.

The Terms of Reference set out three guiding principles:

  • Mutual benefit: One municipality should not benefit at the expense of the other. The intention was 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 was conducted by an independent consultant, and all assumptions are documented in the report.

  • Transparency: The final report was presented in an open council meeting and is available on this page.

  • In January 2026, the City wrote to North Cowichan proposing a joint technical study. North Cowichan declined to participate, and the City proceeded independently. The City respects that decision.


Advisory Panel

A three-member advisory panel provided local knowledge during the study. The panel helped identify the two sample boundaries and provided input on the analysis assumptions. The panel was not a decision-making body. It was made up of three local residents including a representative from Cowichan Tribes. The City thanks the panel members for their time and contribution.


Timeline

Phase 1: Technical study (complete)

  • Terms of Reference endorsed: May 2026

  • Advisory panel appointed: June 2026

  • Technical study completed: September 2026

  • Final report presented at an open council meeting: September 28, 2026

Phase 2: Sharing results and listening (now underway)

  • Report, news release, and FAQ posted: September 28, 2026

  • Community feedback through Big Conversations and email: until November 30, 2026

  • Summary of feedback provided to the new council for information: winter 2026/2027

Stay informed

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

We listened. We learned more. Now we want to hear from you.

Over the years, Duncan residents told the City they wanted more information about boundary realignment as an alternative to amalgamation. This independent technical study was designed to provide that information. It looked at two sample boundaries, for illustrative purposes only, to answer one central question: could realignment address the practical issues created by the current boundary without one municipality benefiting at the expense of the other?

Based on the information available, the net financial impact on either municipality appears limited, and the study did not find that either would benefit at the expense of the other. The most noticeable impact would be for property owners in the areas that would move into the City. However, other potential subjective benefits, such as sense of place, community identity, and clearer boundaries, can't be measured in dollars. The report discusses them, and they're for residents to weigh. We welcome your feedback.

The study is complete. No decisions have been made. The consultant presented the final report at an open council meeting on September 28, 2026, and council received it for information. No boundary changes are happening as a result of this study; it was for discussion and information purposes only.

What the study found

The study looked at what boundary realignment could mean for services, finances, and governance in both municipalities. Key findings include:

  • Net financial impact is limited. Based on the information available, the study did not find that either municipality would benefit at the expense of the other. It did not find significant net impacts on the operating, utility, or capital budgets of either the City or North Cowichan.

  • Property owners joining would pay more than they do now. Property owners in the areas that would move into the City would pay more, mainly because the City’s property tax rates are higher than North Cowichan’s. If realignment were ever pursued, options such as phasing in the rates would need to be considered.

  • Results for Duncan properties are mixed. Municipal property taxes could decrease slightly, but water fees and the regional recreation portion of the tax bill would increase.

  • Little change for the rest of North Cowichan. Municipal property taxes would change very little. South End water and sewer customers who stay in North Cowichan would see slight increases in rates.

  • The City would take on more services. This includes policing, roads, drainage, flood protection, water, sewer, parks, and garbage collection in the sample boundary areas, along with more staff, equipment, and office space.

  • Representation would change. Duncan would have more residents per council member. South End residents who moved into the City would gain a vote for City council.

  • Some benefits can’t be measured. These include sense of place, community identity, clearer boundaries, and access to council. The report discusses them, and residents will weigh them differently. Decisions about local government boundaries are often based less on dollars and more on representation, local voice, and identity. Residents and their elected representatives are best placed to weigh these questions.


Study limitations

The study provides high-level results only, and the results depend on the assumptions used. Please keep these limitations in mind when reading the report:

  • North Cowichan declined to participate, so the analysis of North Cowichan relies on publicly available information only.

  • Detailed information on the condition of North Cowichan’s infrastructure and its long-term capital plans was not available.

  • The analysis is based on 2026 budgets. Further changes are expected in North Cowichan’s budget after the Domtar mill closure.

  • The study did not estimate the one-time costs of making a boundary change.


What happens next

There are no planned next steps other than gathering community feedback. The City will accept feedback until November 30, 2026 through a short survey on the City’s Big Conversations page at bigconversations.duncan.ca/boundary. A summary of what we heard will then be provided to the new council for information.

Any boundary change would first need the agreement of both councils. Without North Cowichan’s agreement, no vote takes place and no change happens. If both councils agreed to pursue realignment, it would also require a thorough engagement process with residents, affected property owners, and First Nations, a vote by electors, and approval by the Province.


Have your say

We want to hear what you think about the study’s findings.

  • Take the survey: Click the button below to share your feedback.

The City will read all feedback. We will not respond to each comment individually, but answers to common questions about the study and the process will be added to the Frequently Asked Questions.


This is not amalgamation

Amalgamation merges two municipalities into one. That question was asked in the 2018 referendum, and residents gave a clear answer.

Boundary realignment adjusts where the line is drawn between two municipalities. Both Duncan and North Cowichan would remain independent municipalities with their own councils, staff, budgets, and identities.


About the study

Why the City studied this

In the 2014 opinion referendum, 54 per cent of Duncan voters supported studying boundary realignment as an alternative to amalgamation. During the 2017 Citizens’ Assembly on amalgamation, a recurring question at public roundtables was whether there was another way. A 2019 citizen survey found 38 per cent of respondents supported exploring boundary options, 31 per cent were unsure, and 31 per cent said no. The number of undecided residents showed that more information was needed.

Duncan’s boundary with the Municipality of North Cowichan was drawn in 1912 and has not changed significantly since. 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. In some cases, the boundary runs through the middle of private properties.


How the study was done

The study was led by Sherry Hurst, M.Pl., MCIP, RPP, of Leftside Partners Inc., an independent consultant with no interest or preference in any particular outcome. It examined two sample boundaries, Scenario A and Scenario B based in service areas and natural features. The sample boundaries are for illustrative purposes only. They are not proposed boundaries.

The Terms of Reference set out three guiding principles:

  • Mutual benefit: One municipality should not benefit at the expense of the other. The intention was 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 was conducted by an independent consultant, and all assumptions are documented in the report.

  • Transparency: The final report was presented in an open council meeting and is available on this page.

  • In January 2026, the City wrote to North Cowichan proposing a joint technical study. North Cowichan declined to participate, and the City proceeded independently. The City respects that decision.


Advisory Panel

A three-member advisory panel provided local knowledge during the study. The panel helped identify the two sample boundaries and provided input on the analysis assumptions. The panel was not a decision-making body. It was made up of three local residents including a representative from Cowichan Tribes. The City thanks the panel members for their time and contribution.


Timeline

Phase 1: Technical study (complete)

  • Terms of Reference endorsed: May 2026

  • Advisory panel appointed: June 2026

  • Technical study completed: September 2026

  • Final report presented at an open council meeting: September 28, 2026

Phase 2: Sharing results and listening (now underway)

  • Report, news release, and FAQ posted: September 28, 2026

  • Community feedback through Big Conversations and email: until November 30, 2026

  • Summary of feedback provided to the new council for information: winter 2026/2027

Stay informed

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

  • Boundary Realignment Review Project Survey

    The independent boundary realignment technical study is complete. The study looked at two sample boundaries, for illustrative purposes only, to explore what realignment could mean for services, finances, and governance in Duncan and North Cowichan. No decisions have been made.

    We would like to hear what you think. This survey takes about five minutes. All questions are optional except the first one. Your answers are anonymous. A summary of the feedback will be provided to the new council for information.

    Before you start, you may want to read the report summary and the Frequently Asked Questions.

    Take Survey
    Share Boundary Realignment Review Project Survey on Facebook Share Boundary Realignment Review Project Survey on X (formerly Twitter) Share Boundary Realignment Review Project Survey on Linkedin Email Boundary Realignment Review Project Survey link
Page last updated: 28 Sep 2026, 08:43 PM