TOWNSHIP OF ESQUIMALT STAFF REPORT
MEETING DATE: July 21, 2025 Report No. FIRE-25-007
TO: Council
FROM: Matt Furlot, Fire Chief
SUBJECT: Fire Suppression Level of Service Endorsement
RECOMMENDATION:
Recommendation
That Council receive this report for information and confirm that the targeted minimum level of service for fire suppression is four firefighters on the Engine and two on the Ladder/Rescue truck, for a total of six suppression personnel per shift.
Body
EXECUTIVE SUMMARY:
This report recommends that Council endorse Esquimalt Fire Rescue Services’ (EFRS) minimum suppression staffing as four firefighters on the Engine and two on the Ladder/Rescue truck. This staffing model supports the Township’s declared Full-Service designation, complies with WorkSafeBC regulations, and ensures the department can fulfill its mutual aid obligations and community response expectations.
BACKGROUND:
EFRS recognizes the importance of maintaining six suppression firefighters per shift to support safe and effective emergency response. This includes four firefighters on the Engine and two on the Ladder/Rescue truck. This staffing model enables compliance with two-in/two-out interior fire operations, provides flexibility for overlapping calls, and maintains readiness for mutual aid support.
While six-person staffing is the operational goal, prior to 2024, the department occasionally operated with five due to temporary vacancies. In early 2024, EFRS began consistently staffing to six by utilizing overtime to fill short-term gaps. This approach has improved deployment reliability, compliance with regulatory standards, and operational safety.
Formalizing this level of service provides clarity for Council and staff, supports transparency, and aligns with EFRS’s strategic direction and declared service level.
ANALYSIS:
Confirming a minimum staffing level of six suppression firefighters per shift reflects current operational practice and aligns with the Township’s declared Full-Service level with the Office of the Fire Commissioner. This staffing model allows EFRS to meet safety regulations, respond effectively to concurrent incidents, and maintain regional interoperability.
To support this level of service, the Township commissioned Dave Mitchell and Associates Ltd. in 2025 to complete a Response Analysis (See Attachment 1). The analysis identified increasing deployment complexity and rising call volume. Key findings include:
• Non-medical incidents have increased by 27 percent since 2019
• Concurrent incidents have increased by 50 percent over the past six years
• Call volume varies significantly by hour and incident type, requiring flexible and consistent coverage
In support of this report, staff will make a presentation (see Attachment 2) that further explores the drivers for the target level of service. The presentation also serves as a basis for discussion about potential ways to consistently and efficiently meet this level of service going forward. Potential options for addressing this level of service will be discussed in a separate report also to be considered by Council at the July 21, 2025 meeting.
The EFRS Workforce Plan, reinforced by this analysis, identified six-person staffing as foundational to maintaining reliable and sustainable service. It also supports firefighter health, fatigue risk management, and compliance with WorkSafeBC requirements.
Benefits of confirming this service level include:
• Reinforcing compliant deployment and safe work practices
• Supporting timely and effective response, even during concurrent or complex incidents
• Providing consistency for mutual aid, workforce planning, and budgeting
If left undefined, the following risks increase:
• Inconsistent deployment and staffing decisions
• Delays in response during high call volume
• Regulatory non-compliance
OPTIONS:
1. Option 1: That Council confirm the minimum level of service for fire suppression as six firefighters per shift, comprised of four on the Engine and two on the Ladder/Rescue unit. (Recommended)
This option formalizes current practice and provides a clear operational standard that aligns with the Township’s Full-Service designation and safety obligations.
2. Option 2: That Council receive this report for information and defer a decision on confirming a minimum level of service.
This option allows for further review but delays operational clarity, complicates planning, and prolongs uncertainty around staffing expectations.
3. Option 3: That Council reduce the minimum level of service for fire suppression below six firefighters per shift.
This option lowers the current standard and may compromise safe deployment, delay response times, and reduce the department’s ability to meet regulatory and mutual aid obligations. This option is not recommended.
COUNCIL PRIORITY:
Good Governance and Organizational Excellence
FINANCIAL IMPACT:
EFRS is currently staffing to six firefighters per shift through the use of overtime, resulting in costs that are trending significantly above the planned 2025 overtime budget. While this approach maintains service levels, it is not financially sustainable over the long term.
A follow-up report will be presented to Council proposing a short-term staffing trial that explores cost-effective options to maintain the six-person model while reducing overtime reliance. That report will also address wellness and operational impacts.
COMMUNICATIONS/ENGAGEMENT:
No community engagement has been completed for this topic.
TIMELINES & NEXT STEPS:
A follow-up report will be presented to Council at the same meeting, proposing a short-term staffing trial to evaluate options for reducing overtime while maintaining the confirmed service level. That report will include financial analysis, risk considerations, and evaluation criteria.
Should Council confirm the six-person minimum service level, staff will incorporate it into workforce planning and future budget recommendations. Any long-term changes to staffing models will be brought forward as part of the 2026 budget process or subsequent Council decisions.
REPORT REVIEWED BY:
1. Kristi Bilodeau, Manager of Finance, Reviewed
2. Deb Hopkins, Director of Corporate Services, Reviewed
3. Dan Horan, Chief Administrative Officer, Concurrence
LIST OF ATTACHMENTS:
1. Response Analysis
2. Fire Level of Service Presentation