I think that if you read the context of the report it is clear that they are focusing on the CoV. The report uses the population of the region as a rationale for selecting its comparison cities, but the vast majority of issues it highlights are related primarily to the core.
Even just reading sentences directly following the quote you included, it actually makes it much more clear it's talking about the region, not the city. I've copied the first few paragraphs in full below; the bolded sentence is immediately after where your quote ended.
(Edit: bolding is not for emphasis, just to show where the quote continues)
From the BOC report 3, page 11 (found here: https://southislandp...OC-Report-3.pdf):
There is a high level of latent ambition in the Victoria region, underpinned by high civic trust and goodwill and a commitment to shared prosperity. Current elected city leadership is viewed to be effective, bold and consensus-oriented. There is growing confidence in Greater Victoria’s capability and competence, abetted by recent figures that it is one of the fastest recovering regions in the world from COVID-19. Many recognise the chance to stake a leadership role in larger arenas, as Greater Victoria heads towards a population of 500,000. But the overall impression is that leadership is disjointed and the ambition not fully calibrated. Greater Victoria has been unable to decisively decide what the priority should be. Ocean innovation can be a catalyst around which the region can build.
Initially, Greater Victoria’s positioning can be led by the City of Victoria, and many regions have begun their journey with visionary core city leadership and a persistent City voice for the region. Over time however, small regions need conducive metropolitan governance to achieve the scale of reach and investment. Currently metropolitan governance is missing in Greater Victoria. The 13 municipalities that make up the region (plus the Capital Regional District Board) are not co-ordinated, and there is no natural forum or guiding mind for the region. There has been very slow progress with reforms to local government or the possible creation of a directly elected regional council. Inter-municipal competition for resources remains strong. The result is Greater Victoria does not easily mobilise higher levels of government around a common proposition and better ensure key decisions about regional priorities and investments are evaluated through a global lens.
Edited by Rex Waverly, 02 June 2021 - 11:14 AM.