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Staff Report
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Report To: Joint Committees
Date of Meeting: June 19, 2023 Report Number: ESD-002-23
Submitted By: Dave Speed, Director of Emergency Services
Reviewed By: Mary -Anne Dempster, CAO Resolution#: JC-083-23, C-097-23, C-122-23
File Number: By-law Number:
Report Subject: Emergency Response Service Review and Recommendations
Recommendations:
1. That Report ESD-002-23, and any related delegations or communication items, be
received;
2. That the following recommendations, as detailed in Report ESD-002-23, be endorsed;
a) Mayor and Council request staff to prepare correspondence for their
consideration to be sent to the provincial government requesting the installation
of residential sprinklers in all new affordable housing developments;
b) Revise the scope of the conceptual design for a new Public Works Depot on
municipal -owned property at 2656 Concession Road #4, Bowmanville to
incorporate a Public Works/Fire Station/training facility with shared building
footprint;
c) Pursue the signing of a lease with Region of Durham Paramedic Services for
concurrent use of Fire station 5 in Enniskillen;
d) Renovate Fire Station 1, Bowmanville to accommodate a full-time two -truck
station with an operational date of September 2025;
e) Hire 20 full-time firefighters to staff an existing fire truck to respond to emergency
calls from renovated Fire Station 1, Bowmanville with a hire date of September
2025; Fill a minimum of 50% of new firefighter positions from existing volunteer
firefighters;
f) Discontinue the Volunteer firefighter program at Station 1 effective January 2026;
g) Hire 20 full-time firefighters to staff an existing fire truck to respond to emergency
calls from Fire Station 4, Courtice with a hire date of September 2027. Fill a
Municipality of Clarington
Resort ESD-002-23
Page 2
minimum of 50% of new firefighter positions from existing volunteer firefighters.
Should Council approve the construction of a new Fire Station in conjunction with
the Operations Depot at 2656 Concession Road #4, Bowmanville, the new full-
time firefighters and fire truck will respond from the new fire station;
h) Discontinue the Volunteer firefighter program at Station 4, effective September
2027;
3. That the costs identified in this report, and funding strategy be included in the 2024 to
2027 multi -year budget;
4. That Council direct the Director of Emergency and Fire Services and Fire Chief to
implement the recommendations endorsed by Council in Report ESD-002-23; and
5. That all interested parties listed in Report ESD-002-23, and any delegations be advised
of Council's decision.
Municipality of Clarington
Report ESD-002-23
Report Overview
Page 3
Clarington's most recent Fire Master Plan was completed by Pomax in 2021 with a strategic
planning time frame of 1 year. In the absence of a strategic plan beyond 2022, Clarington
Emergency and Fire Services (CEFS) has conducted a thorough internal review of the
emergency services it delivers to the public to form the factual base for the creation of
Departmental strategic and operational service delivery 5-year plans.
This Review identifies risks to emergency service delivery being faced today, identifies
trends that may perpetuate or increase these risks, and offers recommendations to mitigate
risks both now and moving forward as Clarington is experiencing unprecedented community
growth.
The principal findings of the review are:
• The design of the CEFS emergency response program may no longer be equipped to
meet Clarington's current and future emergency service demand,
• Numerous risks and service gaps have been identified that can be mitigated in some
areas by moving away from composite stations, and towards full-time firefighter
stations.
1. Background
1.1. In 2021, Pomax developed a Fire Master Plan for CEFS. The plan was received by
Council, endorsed, and implemented. The plan and its recommendations were
developed for a one-year time frame. There is no existing strategic direction for CEFS.
1.2. In the absence of a strategic roadmap, the CEFS Management Team conducted a
thorough review of the types of emergency services provided, how they are delivered, the
quality and reliability of these services, and the costs to do so.
1.3. The formal Review document, complete with recommendations has been finalized by the
Team and provided with this report for Council's consideration and direction. This
Review document will form the basis of the CEFS' 5-year strategic and operational
emergency service delivery plans.
Municipality of Clarington
Report ESD-002-23
2. Proposal
Page 4
2.1 There are two primary themes that have been identified from the Review: a) The design
of the CEFS emergency response program may no longer be equipped to meet
Clarington's current and future emergency service demand, and b) numerous risks and
service gaps have been identified that can be mitigated in some areas by moving away
from composite stations, and towards full-time firefighter stations.
2.2 Region of Durham Paramedic Services (RDPS) have recently expressed strong interest
in utilizing Fire Station 5 for their paramedical program. They are interested in leasing the
property for a five (5) year term and would like to occupy it immediately. Discussions are
underway between both organizations to determine the logistics of simultaneously
providing both services from one location for a short time. CEFS, the CAO, and the
Municipal Solicitor will continue to pursue this opportunity as it may provide additional
service levels to the Clarington community and another source of revenue.
Community Emergency Response Demand
2.3 Most emergency calls (92%) occur within three (3) major urban centers (Courtice,
Bowmanville, and Newcastle), where there are fire hydrants and well -maintained roads.
Approximately 8% of emergency calls originate in rural areas with no hydrants and with
roads that are not always well maintained.
2.4 Medical calls are the most frequent emergency response need that the community
requires of CEFS, while residential fires represent the most common type of structure fire.
This is common for most fire departments in Southern Ontario.
2.5 When comparing Clarington's fire profile to that of Pickering, Ajax, Whitby, and Oshawa,
Clarington's fire statistics for 2019-2021 place us as follows:
a. The most fires per capita.
b. The most structure fires per capita.
c. The most single-family dwelling unit fires per capita.
d. The most vehicle fires per capita.
e. The second most fire dollar loss per capita.
Average number of multi -unit fires per capita (lowest total number).
g. The fewest fire injuries and deaths per capita.
Municipality of Clarington Page 5
Report ESD-002-23
How CEFS Meets Emergency Service Demand Today
2.6 CEFS is expected to respond to approximately 4,200 calls in 2023. This an increase of
over 1,500 calls when compared to 2022. Based upon a population of 104,000, this
equates to one (1) emergency call for every 24.75 people.
2.7 With 19,700 people projected to be moving into Southwest and Southeast Courtice in the
next several years, emergency response numbers are anticipated to increase for the
Station 4 area by 796 calls per year, almost doubling its existing response numbers at a
93.6% increase.
2.8 According to Clarington's Planning and Development Department, in addition to the
Southeast and Southwest Courtice population growth numbers, there will be an additional
62,000 people calling the south, urban portion of the Clarington community home. At the
existing emergency response ratio of one (1) emergency service call for every 24.75
people, it is anticipated that this will result in an increase of 2,505 emergency calls above
the 796 emergency call increase in the South Courtice area.
Municipality of Clarington Page 6
Report ESD-002-23
Renderings showing sample concepts for the Courtice Transit -Oriented
Community Secondary Plan and GO Station Area
Rendering showing sample concepts for the Bowmanville West Urban Centre and Major
Transit Station Area
Municipality of Clarington
Report ESD-002-23
Page 7
Attaphmcnt 1 to PDS-028-23
I l I
Mitchell I Active and Recently Completed Secondary r'
r
Corners Plans and Subwatershed Studies
Courtice 6owmanville - Orano
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rl Maple Grove I- r
Newcastle -
— Cournoe Atbaifmna and E nergy Park
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L Gmrbc Tmnsil-0nenbed Community and GO Station gree Brooldrrll Nelgtrhnurhmd(Adopted 2029)
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_ Faleell Heiphty �_ spoor Hills
QSoutheast Coun,� (Appr—d 2022) _ Soper sprirg%
8ou1hwest Cowboe(Approred 2022) Norm VIIUW
_ Bo—ranville East Urban Centre Amu Creek M1lelghbourrrood 5obl neon Creek and Tapley Cr—k Su bw"ral— Sl�dy A — (Adopted n25)
- Bowma Alb VA t Urban C-1- and GO S'ot-.A— 01f<r �, ISt!ng So conda rV Pian Arv'3s Soper Creek Sub —bumped Stud yAr—
Active and Recently Completed Secondary Plans and Subwatershed Studies
Municipality of Clarington
Report ESD-002-23
Accessory Apartments — Estimated Units and Population
Page 8
Secondary Plan / MTSA
Estimated Units
Estimated Population
Southeast Courtice'
5,000
12,000
Southwest Courtice'
2,900
7,700
COurtice MTSA2, hotel
13,100
19,365
Courtice Waterfront and Energy Parka
1,000
2,400
Farewell Heights4
866
2,596
Bowmanville West Urban Centre and Major
Transit Station Areal
8,000
12,135
Brookhill Neighbourhood'
2,700
7,400
Bowmanville East Urban Centre2
2,400
4,286
Soper Hills'
3,500
8,800
Soper Springs'
740
2,100
Wilmot Creek Neighbourhood'
800
1,600
North Village'
1,100
2,600
Municipality of Clarington
Report ESD-002-23
Additional Growth/Density
2.1 Clarington has seen a dramatic increase in the number of accessory (basement)
apartments. It is anticipated that this will continue to increase each year.
Total Accessory Apartments in Clarington by Year
-15 -1 r V F
Page 9
93
2004 2005 2006 2007 2008 2009 2010 2011 2012 2013 2014 2015 2016 2017 2021 2022 2023
Year
How CEFS Meets Emergency Service Demand Today
2.1 CEFS is a composite fire department comprising 64 full-time firefighters and up to 125
part-time volunteer firefighters responding from five (5) fire stations within the Municipality
strategically located to provide the best emergency response.
2.2 Every fire station has at least one pumper and one tanker truck. Additional pumper
trucks, aerial trucks, rescue trucks, and specialized equipment are located throughout the
Municipality to assist in various emergency operations.
2.3 Station 1 (Headquarters / Bowmanville)
Built in 1994 and located at 2430 Highway 2 in Bowmanville, Station 1 is a composite
fire station with full-time and volunteer firefighters. Station 1 is also home to
management/administration, mechanical, and training staff. Station 1 firefighters
Municipality of Clarington Page 10
Report ESD-002-23
respond to an annual average of 1,700 emergency calls per year in Clarington,
representing 48% of Clarington's annual response volume.
2.4 Station 2 (Newcastle)
Built in 2014 and located at 3333 Highway 2 in Newcastle, Station 2 is a composite fire
station with full-time and volunteer firefighters.
Station 2 firefighters respond to an annual average of 700 emergency calls per year in
Clarington, representing 20% of Clarington's annual response volume.
2.5 Station 3 (Orono)
Built in 1984 and located at 5708 Main Street on Orono, Station 3 is staffed by volunteer
firefighters. Station 3 firefighters respond to an annual average of 175 emergency calls
per year in Clarington, representing 5% of Clarington's annual response volume.
2.6 Station 4 (Courtice)
Built in 2005 and located at 2611 Trulls Road Courtice, Station 4 is a composite fire
station with full-time and volunteer firefighters. It also houses Fire Prevention staff and
the Municipality's By -Law Division. Station 4 firefighters respond to an annual average
of 850 emergency calls per year in Clarington, representing 24% of Clarington's annual
response volume.
2.7 Station 5 (Enniskillen)
Built in 1990 and located at 2354 Concession Road 8 in Enniskillen, volunteer
firefighters staff Station 5. Station 5 firefighters respond to an annual average of 95
emergency calls per year in Clarington, representing 3% of Clarington's response
volume.
2.8 NFPA 1710 provides an internationally recognized travel time best practice of four (4)
minutes for an initial crew of four (4) firefighters to arrive on a fire scene 90% of the time
and a travel time of eight (8) minutes for a total of fifteen (15) firefighters to arrive on
scene 90% of the time.
2.9 The Station location travel time map shows Clarington's travel time performance.
Municipality of Clarington Page 11
Report ESD-002-23
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(a) Clarington is served by three (3) full-time fire trucks, each staffed with five (5)
firefighters. Depending upon vacation time, WSIB, parental leaves, LTD, sick
time, etc., the staffing of each truck is most often at four (4) for a shift total of
twelve (12) firefighters on duty. On these occasions, Clarington cannot meet the
NFPA best practice of fifteen (15) firefighters on scene in eight (8) minutes. It is
also not uncommon for staffing levels to drop below four (4) per truck with a
total complement of between nine (9) and eleven (11) per 24-hour shift. In these
instances, having fewer than twelve (12) firefighters on duty, and having three
(3) arrive on a fire scene in 4 (four) minutes severely restricts fire ground
operations.
2.10 In addition to the above, the Review identifies other service gaps and risks that exist
today, many of which have traditionally been mitigated by the CEFS volunteer firefighter
Municipality of Clarington
Report ESD-002-23
Page 12
program. CEFS volunteer firefighters have been serving the Clarington community for
decades. The men and women who comprise this group are dedicated, selfless,
community -minded people who have saved countless lives. They are pillars of our
community, and for years they have been a part of a program that has worked well.
2.11 However, the data that has been compiled and analyzed in the Review has clearly
identified that the program is no longer working as it once did. Increasing volunteer
attrition rates, decreasing performance/response rates, increasing new recruit class sizes
and costs, and declining recruitment pools have resulted in a program that cannot be
relied upon to provide the guaranteed emergency service response that the Clarington
community requires today.
2.12 This problem is not unique to Clarington. Many composite and volunteer Fire Services in
Ontario and across Canada are experiencing similar challenges. Clarington's local
comparators, Pickering, Ajax, Whitby, and Oshawa were composite fire departments at
one point in time and now are full-time firefighter departments.
2.13 Click here to read the Great Canadian Fire Census 2022.
2.14 Click here to read the Canadian Association of Fire Chiefs Press Release titled "Fire and
Emergency Services Face Precarious Future."
2.15 Click here to read the article from The International Association of Fire and Rescue
Services titled "Chief says firefighter shortage puts small communities at risk."
2.16 Click here to read the article from CBC News titled "Volunteer firefighter shortage putting
communities at risk."
2.17 Click here to read the Toronto Star article titled "Attracting, retaining volunteer firefighters
a challenge."
2.18 Click here to read the article from Fire Wise Consulting and Learning Academy titled
"How the Volunteer Firefighter Shortage is Affecting Canadian Communities."
2.19 Click here to watch the video "Volunteer firefighter shortage putting Canadian
communities in danger."
2.20 Click here to watch the video "Recruitment and Retention of Volunteer Firefighters."
Municipality of Clarington
Report ESD-002-23
Page 13
One of the recommendations from the Canadian Association of Fire Chiefs in light of the
growing volunteer firefighter challenges being faced across Canada is to request that
the Provincial government require the installation of residential sprinklers in all new
affordable housing developments. While this recommendation does not help to resolve
the volunteer firefighter challenges, it does provide people in residential fires with more
time to safely escape.
Recommendation Summary
2.21 Mayor and Council request the provincial government to require the installation of
residential sprinklers in all new affordable housing developments;
2.22 Revise the scope of the conceptual design for a new Public Works Depot on town owned
property at 2656 Concession Road #4, Bowmanville to incorporate a Public Works/Fire
Station/training facility with shared building footprint;
2.23 Pursue the signing of a lease with Region of Durham Paramedic Services for concurrent
use of Fire station 5 in Enniskillen;
2.24 Renovate Fire Station 1, Bowmanville to accommodate a full-time two -truck station with
an operational date of September 2025;
2.25 Hire 20 full-time firefighters to staff an existing fire truck to respond to emergency calls
from renovated Fire Station 1, Bowmanville with a hire date of September 2025; Fill a
minimum of 50% of new firefighter positions from existing volunteer firefighters;
2.26 Discontinue the Volunteer firefighter program at Station 1 effective January 2026;
2.27 Hire 20 full-time firefighters to staff an existing fire truck to respond to emergency calls
from Fire Station 4, Courtice with a hire date of September 2027. Fill a minimum of 50%
of new firefighter positions from existing volunteer firefighters. Should Council approve
the construction of a new Fire Station in conjunction with the Operations Depot at 2656
Concession Road #4, Bowmanville, the new full-time firefighters and fire truck will
respond from the new fire station; and
2.28 Discontinue the Volunteer firefighter program at Station 4, effective September 2027.
Municipality of Clarington
Report ESD-002-23
3. Financial Considerations
Page 14
3.1 A transition from the volunteer service for Station 1 and Station 4 will result in savings of
approximately $494,400 per year, based on the 2023 budget. These savings can be
reallocated towards the financial impact of a larger contingent of full-time firefighters.
3.2 A phased -in approach is recommended to fund the salary costs for the firefighters
utilizing a combination of reserve funds and tax levy. The following table shows the
incremental impact of reserve fund contributions and tax levy as well as the tax levy
impact (based on the 2023 levy).
Incremental $520,000 $1,084,522 $1,048,170 $1,088,455 $1,087,571 $1,083,439 $1,104,101
Change
Tax Levy % 0.72% 1.50% 1.50% 1.50% 1.50% 1.50% 1.52%
3.3 The above costs represent the staffing impacts only. There would be additional operating
costs for these firefighters, such as suit cleaning, training, office supplies, and other
incidentals, which would be offset by savings in equipping and maintaining gear for new
volunteer firefighters. The operating costs of the new hall are also not included above,
which would include hydro, water, repairs and maintenance.
3.4 A portion of the capital costs of the firehall would be, currently, eligible for recovery
through development charges. The Municipality is planning to update its development
charges study in 2023 to include the impacts of the growth due to the secondary plans.
The costs of this project will be included in the DC Study to its eligible limit. The recovery
of costs from development charges is subject to limitation due to benefit to existing
taxpayers as well as historical spending. A debenture is likely required for this project to
fund the construction, principal payments and interest are recoverable from development
charges up to the allowable limit.
4. Concurrence
This report has been reviewed by the Deputy CAO/Treasurer, Director of Planning and
Infrastructure Services, Director of Public Works and the Director of Community
Services who concur with the recommendations.
Municipality of Clarington
Report ESD-002-23
5. Conclusion
Page 15
It is respectfully recommended that Council approve the recommendations of this
report.
Staff Contact: Dave Speed, Fire Chief, 905-623-5126 or dspeed@clarington.net.
Attachments:
Attachment 1 — Emergency Response Service Review — CEFS 2023 Final
Interested Parties:
There are no interested parties to be notified of Council's decision.
Attachment 1 to Report ESD-002-23
2023
Emergency Response Service Review
�11
Clarington Emergency and Fire Services
5/11/2023
I
Emergency Response Service Review:
Clarington Emergency and Fire Services
Executive Summa
Clarington Emergency and Fire Services (CEFS) has conducted a thorough internal
review of the emergency services it provides to the public in order to identify the needs
of the growing Clarington community, and to assess how these needs are being met.
As a modern municipal service primarily funded by taxpayer dollars, it is incumbent
upon us to hold ourselves accountable, and to conduct reviews periodically to identify
improvement opportunities.
A revised Establishing and Regulating by-law was recently submitted to Clarington
Council for their consideration and approval. The revised by-law recommends that
CEFS not provide specialty rescue services such as high angle rope rescue, confined
space, trench, building collapse, etc beyond the awareness level as the demand for this
service does not exist. Instead, it has been recommended to Council that these
services be provided on an as -needed basis by Oshawa Fire through a Fire Protection
Services Agreement. Other services including elevator rescue have been added to the
by-law based upon community need. By taking these steps, CEFS is designing the
services it offers to suit Clarington's emergency service needs.
This Review identifies opportunities, and recommends changes to improve
Departmental efficiencies, effectiveness, and service quality while being fiscally
responsible. The Clarington community is changing quickly. Growth is here now, and
CEFS must change and adapt to continue to provide the high service levels that the
Clarington community is accustomed to.
ERSR: May 2023 Page 1 of 53
Clarington Emergency and Fire Services
Emergency Response Service Review:
Clarington Emergency and Fire Services
Introduction
The Clarington CAO and Corporate senior leadership team have established four
corporate pillars to provide a foundation for all Departments to use as a guide for
consistent corporate strategic modernization and improvement.
1. Setting strategic vision
2. Developing talent
3. Driving for results
4. Working with financial information
This Emergency Response Service Review has been developed by the CEFS
Management Team within the context of these four corporate pillars:
1) Setting the strategic vision
In determining the strategic vision for CEFS, several essential foundational pieces have
been put in place.
a) Firstly, a CEFS Vision/Mission/Core Values committee was created, comprised of
CEFS staff along with representation from Clarington HR to develop a Departmental
set of guiding statements and values. These statements are being used to help
guide the CEFS strategic path for the Fire Service.
b) Secondly, a review of Clarington's emergency services' needs has been conducted
with risks to these service needs identified.
c) Thirdly, consideration has been given to further risks, both current and emerging to
CEFS emergency service efficiency, quality, costs and the return on taxpayer
investment.
d) Lastly, community growth has been considered so that CEFS has plans to ensure
that services can continue to be provided in accordance with the pace of change.
2) Developing talent
It is critically important that CEFS makes staff development a priority within the
Department. Providing people with opportunities to expand their thinking, to try stretch
assignments, and to develop their skill sets and talent, serves the department well and
the community we serve. Having `home grown' leaders ready when promotional
vacancies occur promotes positive staff morale, fosters a healthy culture, challenges the
status quo, keeps staff engaged, and moves the Department to the leading edge of
progress and innovation.
CEFS has identified several key initiatives to help promote talent development in line
with this Corporate pillar.
Continuous Improvement Committee
Leadership Development Program
ERSR: May 2023 Page 2 of 53
Clarington Emergency and Fire Services
Emergency Response Service Review:
Clarington Emergency and Fire Services
Education Program
3) Driving for results and working with financial information
Recommendations have been provided in this report to meet community emergency
services' needs. Considerations have been included in the recommendations to ensure
they are fiscally realistic and responsible to the taxpayers we serve.
1) Setting a Strategic Vision
1a) CEFS Vision, Mission, and Core Values
The CEFS Vision Committee comprised of women and men from each Division (Fire
Prevention, Training, Suppression, Management/Admin, Association representation)
and every rank recently developed the Departmental Vision, Mission, and Core Values
statements.
Clarington Emergency and Fire Services
Vision
A community free from loss of life, injuries, and property loss
Mission
An innovative service dedicated to protecting our community through education,
prevention, and emergency response.
Professionalism
Core Values
A commitment to excellence in everything we do
Integrity Dedicated to honesty and accountability while holding
ourselves to a high ethical standard
Compassion Devoted to treating people with dignity and kindness
ERSR: May 2023 Page 3 of 53
Clarington Emergency and Fire Services
Emergency Response Service Review:
Clarington Emergency and Fire Services
Our vision statement is our dream for our community. It is slightly out of reach,
something we constantly strive for, and something our strategic and operational plans
will be designed to meet. It is a picture/description of what we would like our community
to look like in the future.
Our mission statement is our purpose for being. It's what we do every day, and how we
do it ("an innovative service").
Our core values are what we will become known for. It's how we behave when we
interact with the public, our colleagues, and ourselves. It's what we value most and
what we strive to become as a group and as individuals.
The committee worked hard over several meetings to discuss every word of every
statement so that they clearly communicated what we wanted to convey, while also
being succinct. Each statement is less than 15 words so that they can be easily
remembered and recited and hopefully adopted.
These statements will be proudly displayed in the Clarington fire stations as a constant
reminder of who we are, what we do, how we do it, and what we want our community to
become. They are the key foundational pieces that are required to develop our
departmental strategic plans, our budgets, and upon which everything we do will be
built.
1 b) Review of Clarington's emergency services' needs
Community Overview
With a population of approximately 104,000, Clarington covers an area of 610 square
kilometers comprised of four (4) major urban centers, (Bowmanville, Courtice, Newcastle
and Orono) as well as 14 hamlets.
According to the Stats Canada 2021 Census, the majority of Clarington's population
(65%) is between ages 15 and 64, followed by ages 0-14 at 20%, and ages 65 and over
at 15%.
Languages spoken mostly at home are English at 93.7%, Non -official at 4.1 %, and
French at 0.5%
16.5% of the population identifies themselves as being a visible minority.
The majority of people in Clarington work outside of the home with 35% working in
Clarington, and 65% commuting outside of Clarington.
Risk — Limited volunteer hiring pool. There are 46,310 people in the 20-55 age group,
which is the primary hiring age for the CEFS volunteer program. Out of this number,
65% commute beyond Clarington, making it impossible for them to respond during work
hours. This brings the number to 16,208, or approximately 15.9% of Clarington
ERSR: May 2023 Page 4 of 53
Clarington Emergency and Fire Services
Emergency Response Service Review:
Clarington Emergency and Fire Services
residents who are within the age range to likely be considered as firefighters, and who
work within Clarington and therefore able to respond during weekdays.
According to Clarington's Planning and Infrastructure Division, the following numbers of
people live within 5 kilometers of each Fire Station. People must live within 5 kms to be
eligible to apply. Any distance further than this may result in a drive time that would take
too long when reporting from their home to the Fire station during an emergency call.
Station
Population within 5 kms
15.9% hiring pool
Station 1
52,327
8,319
Station 2
11,904
1,892
Station 3
3,773
599
Station 4
30,256
4,810
Station 5
2,844
452
Community Risks
Geographic Profile Risks
Geographic Feature
Potential Impact on the Delivery of Fire Protection
Services
Lake Ontario
Hazards and concerns identified with having a large body of
water at the southern border of the municipality presents
several risks including flooding and water rescue.
Railway Tracks
Large amounts of people and goods are transported through
the municipality by rail. There are risks associated with train
derailments and dangers associated with large volumes of
hazardous materials.
Highways 401,
Highway transportation routes intersecting and traversing
35/115, 407, 418
Clarington create significant potential risk due to motor
vehicle collisions and associated dangers due to hazardous
materials.
Ganaraska Forest
Having the largest urban forest in Ontario requires the
community to address visitor safety and environmental
concerns such as forest fires. There is a municipal
partnership associated with the Ganaraska Forest. Area
Municipalities meet with staff from the Ganaraska Forest to
provide updates on activities in the forest such as accidents,
prescribed burns, logging etc. CEFS has hosted courses to
assist fire services in forestry firefighting. MNRF is consulted
and provides CEFS with annual costs for assistance using
water bombers, helicopters, staff etc.
ERSR: May 2023 Page 5 of 53
Clarington Emergency and Fire Services
Emergency Response Service Review:
Clarington Emergency and Fire Services
Clarington Building Stock
Building Type
# of Buildings
High Rise Residential
3
Low Rise Residential
46
Single/Town Residential
29,725
Farms
672
Seasonal / Cottage
69
Seniors/Retirement
7
Industrial
108
Gas Stations/Auto Repair
45
Restaurants
129
Nursing Home/Hospital
5
Assembly
28
Hotels/Motels
8
Schools
40
Offices
74
Group Homes
8
Day Care Centers
31
Commercial
346
Churches Places of Worship
43
Residential Occupancies
Single -detached house
27,945
Apartment in building that has five
5 or more stories
525
Semi-detached house
1,075
Row house
3,125
Apartment or flat in duplex
910
Apartment in a building that has
less than five (5) stories
2,290
Other single -detached house
30
Movable dwelling
65
Total private dwellings
35,955
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Clarington Emergency and Fire Services
Emergency Response Service Review:
Clarington Emergency and Fire Services
Clarington Critical Infrastructure Profile Risks
Identified Critical Infrastructure
Issues / Concerns
Elexicon / Hydro One
Hydro distribution system is not only
Electricity Distribution
critical to the delivery of emergency
services, but also to the ongoing
requirements for commerce throughout the
GTA.
Lakeridge Hospital, Bowmanville
Consideration is required should an
emergency occur on site or the hospital is
compromised because of a remote
emergency.
Telecommunications
Communication in the event of an
emergency is important to both the public
and to emergency service providers.
Durham Region Works Water
Stable water supply for the safe secure
Department
drinking water for the residents and
firefighting.
Hazard Profile Risks in Clarington
Identified Hazard
Probability
Consequence
Assigned Risk Level
Flood
Almost Certain
Minor
Moderate
Ice Storm
Possible
Moderate
Moderate
Radiation Leak OPG
Rare
Catastrophic
Moderate
Propane Explosion
Rare
Moderate
Low Risk
Fire Emergencies
Almost Certain
Moderate
High Risk
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Clarington Emergency and Fire Services
I
Emergency Response Service Review:
Clarington Emergency and Fire Services
Clarington Public Safety Response Profile Risks
Identified
Types of incidents
Their role at the incident
Issues / Concerns
Public
they respond to
Safety
Response
Agency
Durham
Motor Vehicle
Scene control
Common inter -
Regional
Collisions (MVC)
Traffic control and assist
agency awareness
Police
Fire emergencies
CEFS with fire
and incident
Service
investigation
command training
(DRPS)
Marine
between fire and
emergencies
Marine based search &
police services
rescue
Region of
Medical
Transport patients to
Common inter -
Durham
emergencies
hospital
agency awareness,
Paramedic
MVC s
Provide pre -hospital
and incident
Services
medical care
command training
(RDPS)
between fire and
Standby and perform
RDPS
Fire emergencies
rehabilitation for
firefi hters at fire calls
OPG
Fire and
OPG IFB establishes
Common inter -
Industrial
emergency
command and operational
agency training
Fire Brigade
incidents at
control to mitigate
(especially Incident
(IFB)
Darlington Nuclear
emergency incidents
Management
Generating Station
System training)
(OPG)
between OPG IFB
and Clarington
Emergency Fire
Services (CEFS) as
CEFS provides
supporting role to
the IFB at OPG
Ontario
Search and Rescue
Assist in search and
Common inter -
Volunteer
rescue incidents
agency Incident
Emergency
Command System
Response
(ICS) training
Team
between OVERT
(OVERT)
and CEFS
ERSR: May 2023 Page 8 of 53
Clarington Emergency and Fire Services
Emergency Response Service Review:
Clarington Emergency and Fire Services
Clarington Economic Profile Risks
Identified
Occupancy
Key Risk
Probability
Consequence
Assigned Risk
Level
Darlington Nuclear
Nuclear
Rare
Catastrophic
Moderate Risk
Municipality of
Clarington
Fire
Possible
Moderate
Moderate Risk
Bowmanville Hospital
Fire
Possible
Major
Moderate Risk
Algoma Orchards
Fire
Low
Minor
Minor Risk
St Mary's Cement
Fire
Possible
Minor
Moderate Risk
An event at OPG Darlington may not necessarily pose a nuclear radiation issue. Any closure of
the facility would have a significant negative effect on the local economy of Clarington. Small
fires at the facility that have occurred have been quickly extinguished and put under control.
The second largest employer in Clarington is the Municipality of Clarington with 700 employees.
Most employees work at the municipal offices while the remainder are spread out across the
Municipality. Business continuity plans are a top priority for the Municipality of Clarington. An
Emergency Management/Business continuity position was approved in 2023 and will be filled
by September.
The Bowmanville-Lakeridge Health hospital has approximately 370 employees. Any disruption
here would force patients to attend or potentially be transferred to Oshawa- Lakeridge Health
hospital or Northumberland Hills Hospital.
Algoma Orchards is an apple farming, packing, and juice bottling company which employs
approximately 130 people and is the largest agricultural employer in Clarington.
St. Mary's Cement employs approximately 120 people. There have been fires at this
facility in the past.
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Clarington Emergency and Fire Services
Emergency Response Service Review:
Clarington Emergency and Fire Services
CEFS Emergency Response Statistics
The Clarington community has similar types of emergency needs to other comparable
communities. Structure fires, medical responses, carbon monoxide incidents, elevator rescues,
motor vehicle collisions, water rescues, natural gas leaks and other hazardous material calls,
agricultural and other non -structure fires are among the most common types of emergency calls.
However, what mostly separates Clarington from other communities are the challenges that
come with its geographic size. Most emergency calls (92%) occur within three (3) major urban
centers (Courtice, Bowmanville, and Newcastle) where there are fire hydrants, and well -
maintained roads. About 8% of emergency calls originate in rural areas with no hydrants and
with roads that are not always well maintained. How to design CEFS to best meet the needs of
the greatest number of people is one of the drivers behind this report.
Medical calls are the most frequent emergency response need that the community requires of
CEFS, while residential fires represent the most common type of structure fire. This is common
for most fire departments in Southern Ontario. What is not as common is the large number of
motor vehicle collisions, and vehicle fires that occur in the Clarington community. Vehicle fires
are the fourth leading dollar loss fire in the community.
All Responses
Appendix B contains response data from the 2021 Fire Master Plan created for CEFS by Pomax.
In reviewing the tables, several risks become clear:
Risk — The majority of emergency response demand in Clarington is between 8 a.m. and 8 p.m.
at all five (5) fire stations. This also happens to be the time frame when the fewest number of
volunteer firefighters are available as many of them work outside of Clarington during the day.
This problem is anticipated to increase as emergency call volume increases along with growth
in stations 1 and 4, while volunteer retention rates continue to decrease.
Risk — Stations 1, 2, and 4 show an upward trend in emergency call demand (2020 was an
anomaly with the impact of COVID-19 on call volumes), while Stations 3 and 5 have a static
emergency call demand. Stations 1, 2, and 4 are expected to see a continuing increase in
demand as the population increases in the next few years. Additional guaranteed response
resources are needed to respond to this demand increase.
Fires
ERSR: May 2023 Page 10 of 53
Clarington Emergency and Fire Services
70
60
50
40
30
20
10
0
Emergency Response Service Review:
Clarington Emergency and Fire Services
Number of Structure Fires
54 53
43
2019 2020 2021
60
2022
1 Source: OFMEM Standard Incident Report Data
Structure Fires by Occupancy Type
2019
2020
2021
2022
4 YrAv
Assembly
0
1
0
3
1
Institutional
0
0
1
0
0.25
Residential
29
44
37
42
38
Business/Personal,
Mercantile
6
1
2
3
3
Industrial
3
4
3
6
4
Non-OBC structures
barns, sheds,gazebo)
5
4
10
6
6.25
Totals
43
54
53
60
52.5
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Clarington Emergency and Fire Services
Emergency Response Service Review:
Clarington Emergency and Fire Services
Structure Fire Dollar Loss
The majority of fires with dollar loss in Clarington for the period 2019-2022 were for the
residential or `C' occupancy at $15,997,861. Second was Mercantile/Business at
$10,517,600, and third was Industrial at $8,208,500. Vehicle fires were fourth at
$5,300,468 (not technically a structure), more than all other remaining occupancy types
combined (Assembly, Institutional, Non -structure).
Clarington Fire Dollar Loss by Occupancy
209-2022
$5,300,468
$1,941,50(
$15,997,861
>,208,500
$10,517,600
■ Industrial ■ Mercantile/Business ■ Residential Agriculture ■ Vehicles
ERSR: May 2023 Page 12 of 53
Clarington Emergency and Fire Services
Emergency Response Service Review:
Clarington Emergency and Fire Services
Fire Comparators
While Clarington's emergency calls are similar in nature to other comparable
communities, their frequency is different.
When comparing Clarington's fire profile to that of Pickering, Ajax, Whitby, and Oshawa,
Clarington's fire statistics for 2019-2021 place us as follows:
• The most fires per capita
• The most structure fires per capita
• The most single-family dwelling unit fires per capita
• The most vehicle fires per capita
• Average number of multi -unit fires per capita (lowest total number)
• The fewest fire injuries and deaths per capita
Risk - This is alarming and will be a central driving force in the development of strategic
plans for the Fire Prevention and Education Division of CEFS. However, these high
numbers are also a clear indicator that CEFS must continue to look for ways to provide
the most effective emergency response possible.
1 c) Further Risks to CEFS Service Delivery
Emergency Response
CEFS is a composite fire department consisting of full-time and part-time volunteer
suppression firefighters. As the largest geographic municipality in the Region of
Durham, Clarington is made up of four urban centers and Fourteen (14) hamlets,
creating a blend of urban and rural firefighting elements.
Clarington in terms of an Emergency and Fire services perspective is highly unique.
With it's several major series highways, nuclear and agricultural sectors, protected
green spaces, increased economic development in both commercial and industrial
sectors, increased high density planning and development, and with the incoming Go -
transit expansion, Clarington as a municipality is growing exponentially and with this
growth comes opportunities and challenges to our municipal services.
Fire Stations
Clarington has five (5) fire stations within the Municipality strategically located to provide
the best emergency response. NFPA 1710 provides an internationally recognized travel
time best practice of four (4) minutes for an initial crew of four (4) firefighters to arrive on
a fire scene 90% of the time, and a travel time of eight (8) mins for a total of fifteen (15)
firefighters to arrive on scene 90% of the time.
ERSR: May 2023 Page 13 of 53
Clarington Emergency and Fire Services
Emergency Response Service Review:
Clarington Emergency and Fire Services
The Station location travel time map shows Clarington's travel time performance.
TOWNSHIP
OF SCUGOG Current Fire Statione Travel Times
1Station
0,10
C incession Rd Concession Rd'9egional Rd 20
9
Fire Station �3
No 5 r i ' ,F.,._._-
Regional Rd 3
Concession Rd 7
a E
o
CITY OF ? Ganaras i kaRoad t
OSHAWA3
d
'
;__-._t a Fire Station
�t
g TauntonRoad
o - Nora
Pebblestone•Road
s c z° Q 2
Nash Road-Concesskln M c 1 Z 4
No j Concession Rd 4. --�- - 1
i - 9io��aly. , ffJJ i Fre Station No J f O
ghwat I /� 1 Headquarters j
Bloor-Street y? o V Concession Rd 3
i
� r co„ ��' Reese Fir�Station
R
� nal hi
„ o Baseline Road Baseline Road East ✓bwa_kx.-� •*y �. --_
•'� •`•,'�._... lz.<i 2 egianal Highway411
`l.' A.1° ' 11119.E :�• x__ � } }l
Lake Ontario �
Risk - While the majority of the urban centers in Clarington can be reached within a four
(4) minute travel time, there are several response gaps, particularly in the most
populous urban center. Over half of Bowmanville is outside of the four (4) minute travel
time.
Risk - With Bowmanville experiencing the greatest demand for emergency service
(almost 50% of emergency calls), there is a risk of further response delays should a call
for emergency service be received when the Station 1 Bowmanville truck is engaged in
another emergency call (a single truck response in Bowmanville, a multiple truck
response in Station 4 or 2 response areas, or any emergency call North or North East of
Station 1 area).
Risk — Clarington is served by three (3) full-time fire trucks, each staffed with five (5)
firefighters. Depending upon vacation time, sick time, WSIB, parental leaves, etc, the
staffing of each truck is most often at four (4) for a shift total of twelve (12) firefighters on
ERSR: May 2023 Page 14 of 53
Clarington Emergency and Fire Services
Emergency Response Service Review:
Clarington Emergency and Fire Services
duty. On these occasions, Clarington cannot meet the NFPA best practice of fifteen
(15) firefighters on scene in eight minutes. To conduct fireground operations with fewer
than fifteen (15) firefighters particularly in non-hydranted areas where multiple staff are
required to continuously shuttle water back and forth from a water source kilometers
away to the fire scene, has an impact on the quality of the service being delivered and
potentially on fire safety. It is also not uncommon occasionally for staffing levels to drop
below four (4) per truck with a total compliment of between nine (9) and eleven (11) per
24 hour shift. In these instances, having fewer than twelve (12) firefighters severely
restricts fire ground operations. As well, having three (3) firefighters arrive as the initial
fire crew instead of four places restrictions on fire operations that can be performed,
including interior firefighting and search and rescue.
Risk — CEFS has recently returned to its pre-covid medical tiered response model. Prior
to covid, CEFS responded to reports of chest pain, and difficulty breathing. With the
onset of covid, to help prevent potential exposure to covid these calls were suspended.
In the first quarter of 2023 the decision was made by the Fire Chief to re -institute a
response to this community need. As a result it is anticipated that our Departmental
emergency call volumes will increase by approximately 1,200 calls per year. This
increase will result in our full-time trucks being unavailable to respond to other calls
more often than in 2022.
Every fire station has at least one pumper and one tanker truck. Additional pumper
trucks, aerial trucks, rescue trucks and specialized equipment are located throughout
the Municipality to assist in a variety of emergency operations.
Station 1 (Headquarters / Bowmanville)
Built in 1994 and located at 2430 Highway 2 in Bowmanville, Station 1 is a composite
fire station with full-time and volunteer firefighters. Station 1 is also home to
management/administration, mechanical and training staff.
Station 1 firefighters respond to an annual average of 1,700 emergency calls per year in
Clarington, representing 48% of Clarington's annual response volume.
Station 2 (Newcastle
Built in 2014 and located at 3333 Highway 2 in Newcastle, Station 2 is a composite fire
station with full-time and volunteer firefighters.
Station 2 firefighters respond to an annual average of 700 emergency calls per year in
Clarington, representing 20% of Clarington's annual response volume.
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Clarington Emergency and Fire Services
Emergency Response Service Review:
Clarington Emergency and Fire Services
Station 3 (Orono)
Built in 1984 and located at 5708 Main Street in Orono, Station 3 is staffed by volunteer
firefighters.
Station 3 firefighters respond to an annual average of 175 emergency calls per year in
Clarington, representing 5% of Clarington's annual response volume.
Station 4 (Courtice)
Built in 2005 and located at 2611 Trulls Road Courtice, Station 4 is a composite fire
station with full-time and volunteer firefighters. It also houses Fire Prevention staff, and
the Municipality's Bylaw and Enforcement Division.
Station 4 firefighters respond to an annual average of 850 emergency calls per year in
Clarington, representing 24% of Clarington's annual response volume.
Risk — with the growth beginning in the Southeast and Southwest Courtice area, call
volume will increase significantly and will become comparable to that of the
Bowmanville area. With this increase in emergency calls, Bowmanville will be left
unprotected, along with Courtice for all two truck emergency responses. Together,
Bowmanville and Courtice call volume will account for approximately 85% of all
emergency call demand.
Station 5 (Enniskillen)
Built in 1990 and located at 2354 Concession Road 8 in Enniskillen, Station 5 is staffed
by volunteer firefighters.
Station 5 firefighters respond to an annual average of 95 emergency calls per year in
Clarington, representing 3% of Clarington's response volume.
Risk — at 95 emergency calls per year, equipped with the smallest volunteer
complement, the most challenging one for which to recruit, and the lowest average
number of firefighters responding per emergency, consideration should be given to no
longer continuing with Station 5 as a volunteer fire Station. With the growing
emergency service demand in the Southern urban centers, the funds used to maintain
Station 5 and the fire crew might be more wisely invested in the South portion of
Clarington. An additional full-time fire station is proposed for Liberty and Concession 4
with a response time that is almost the same as the existing Station 5 response area.
ERSR: May 2023 Page 16 of 53
Clarington Emergency and Fire Services
I
Emergency Response Service Review:
Clarington Emergency and Fire Services
Response Design
Clarington responds to the following emergency call types with the resources identified
in the chart below:
Clarington Fire Responses
ALARMS:
RESIDENTIAL - APARTMENT / TOWNHOUSE
3 PUMPERS
RESIDENTIAL- HOUSE
3 PUMPERS
RESIDENTIAL - HIGHRISE
3 PUMPERS
COMMERCIAL
3 PUMPERS
INSTITUTIONAL- HOSPITAL
3 PUMPERS PLUS 1 AERIAL
INSTITUTIONAL - NURSING HOME
3 PUMPERS
INSTITUTIONAL - RETIREMENT HOME
3 PUMPERS
INSTITUITONAL - SCHOOL / CHURCH
3 PUMPERS
INDUSTRIAL
3 PUMPERS
RESET - ASSIST
1 PUMPER
FIRES / EXPLOSION :
4 PUMPERS, CHIEF OFFICER ON CALL, PLUS 1
STRUCTURAL: RESIDENTIAL - HIGHRISE
AERIAL IF URBAN OR 2 TANKERS IF RURAL
STRUCTURAL: RESIDENTIAL -APARTMENT/
4 PUMPERS, CHIEF OFFICER ON CALL, PLUS 1
TOWNHOUSE
AERIAL IF URBAN OR 2 TANKERS IF RURAL
4 PUMPERS, CHIEF OFFICER ON CALL, PLUS 1
STRUCTURAL: RESIDENTIAL - HOUSE
AERIAL IF URBAN OR 2 TANKERS IF RURAL
4 PUMPERS, CHIEF OFFICER ON CALL, PLUS 1
STRUCTURAL: COMMERICAL
AERIAL IF URBAN OR 2 TANKERS IF RURAL
STRUCTURAL: INSTITUTIONAL - HOSPITAL
4 PUMPERS, CHIEF OFFICER ON CALL, 1 AERIAL
STRUCTURAL: INSTITUTIONAL - NURSING HOME
4 PUMPERS, CHIEF OFFICER ON CALL, 1 AERIAL
STRUCTURAL: INSTITUTIONAL - RETIREMENT
4 PUMPERS, CHIEF OFFICER ON CALL, 1 AERIAL
HOME
OR 2 TANKERS IF RURAL
STRUCTURAL: INSTITUTIONAL -SCHOOL/
4 PUMPERS, CHIEF OFFICER ON CALL PLUS 1
CHURCH
AERIAL IF URBAN OR 2 TANKERS IF RURAL
4 PUMPERS, CHIEF OFFICER ON CALL, PLUS 1
STRUCTURAL: INDUSTRIAL
AERIAL IF URBAN OR 2 TANKERS IF RURAL
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Clarington Emergency and Fire Services
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Clarington Emergency and Fire Services
4 PUMPERS, CHIEF OFFICER ON CALL PLUS 2
STRUCTURAL: BARN
TANKERS IF RURAL
STRUCTURAL: AIRCRAFT
4 PUMPERS PLUS 2 TANKERS IF RURAL
STRUCTURAL: ELECTRICAL SUBSTATION
4 PUMPERS
STRUCTURAL: OTHER
4 PUMPERS
STRUCTURAL: APPLIANCES/ELPANEL/ELPLUG
2 PUMPERS PLUS 1 PT PUMPER IF RURAL FIRE
4 PUMPERS, CHIEF OFFICER ON CALL, PLUS 1
STRUCTURAL: CHIMNEY FIRE
AERIAL IF URBAN OR 2 TANKERS IF RURAL
NON-STRUCTURAL: VEHICLE
2 PUMPER
VEHICLE FIRE ON 401
2 PUMPERS PLUS 1 TANKER
NON-STRUCTURAL: ILLEGAL BURN
1 PUMPER
1 PUMPER PLUS 1 FT PUMPER IF IN VOLUNTEER
NON-STRUCTURAL: BBQ
AREA
NON-STRUCTURAL: GRASS/TREE/BRUSH
2 PUMPERS
IN HARBOUR: 2 PUMPERS PLUS 1 RESCUE,
NON-STRUCTURAL: MARINE IN OR OUT OF
CHIEF OFFICER ON CALL, PLUS 1 PT PUMPER IN
HARBOUR
VOLUNTEER AREA; OUT OF HARBOUR: 2
PUMPERS AND 1 ZODIAC
NON-STRUCTURAL: PIPELINE/TANK/FARM
3 PUMPERS, 1 RESCUE, CHIEF OFFICER ON CALL
PLUS 2 TANKERS IF RURAL
1 PUMPER PLUS 1 FT PUMPER IF IN VOLUNTEER
NON-STRUCTURAL: ELECTRICAL TRANSFORMER
AREA
1 PUMPERS PLUS 1 FT PUMPER IN A
NON-STRUCTURAL: OTHER
VOLUNTEER AREA
NON-STRUCTURAL: SHED
2 PUMPERS PLUS 1 TANKER IF RURAL
4 PUMPERS, CHIEF OFFICER ON CALL, PLUS 1
NON-STRUCTURAL: SHED CLOSE TO STRUCTURE
AERIAL IF URBAN OR 2 TANKERS IF RURAL
NON-STRUCTURAL: GARBAGE BIN/RUBBISH
2 PUMPERS PLUS 1 TANKER IN VOLUNTEER
AREA
NON-STRUCTURAL: GARBAGE BIN/RUBBISH
4 PUMPERS, CHIEF OFFICER ON CALL, PLUS 1
CLOSE TO STRUCTURE
AERIAL IF URBAN OR 2 TANKERS IF RURAL
NON-STRUCTURAL:
APPLIANCES/ELPANEL/ELPLUG
2 PUMPERS PLUS 1 PT PUMPER IF RURAL FIRE
NON-STRUCTURAL:SMOKE VISABLE/UNKNOWN
2 PUMPERS
SOURCE
ACCIDENT:
VEHICLE 2 PUMPERS
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Clarington Emergency and Fire Services
Emergency Response Service Review:
Clarington Emergency and Fire Services
PEDESTRIAN STRUCK
2 PUMPERS
AIRCRAFT
2 PUMPERS
2 PUMPERS, 1 RESCUE & CHIEF OFFICER ON
MARINE - IN HARBOUR
CALL, PLUS 1 PT PUMPER IN A VOLUNTEER
AREA
2 PUMPERS, 1 RESCUE & CHIEF OFFICER ON
MARINE - OUT OF HARBOUR
CALL
RAIL - PED/MOTOR VEHICLE
2 PUMPERS
RAIL - DERAILEMENT SPILL/NO SPILL
2 PUMPERS & CHIEF OFFICER ON CALL
MEDICAL:
1 PUMPER + 1 FT PUMPER IF IN VOLUNTEER
EMERGENCY
AREA
1 PUMPER + 1 FT PUMPER IF IN VOLUNTEER
PAD ALARM
AREA
1 PUMPER PLUS 1 FT PUMPER IN A VOLUNTEER
VSA
AREA
1 PUMPER PLUS 1 FT PUMPER IN A
OVERDOSE
VOLUNTEER AREA
1 PUMPER PLUS 1 FT PUMPER IN A VOLUNTEER
INDUSTRIAL ACCIDENT -PERSONAL INJURY
AREA
INDUSTRIAL ACCIDENT -ENTRAPMENT
2 PUMPERS
911 UNKNOWN 1 PUMPER + 1 FT PUMPER IF IN VOLUNTEER
AREA
PUBLIC HAZARD:
1 PUMPER PLUS 1 FT PUMPER IF IN VOLUNTEER
CO DETECTOR - WITH SYMPTOMS
AREA
CO DETECTOR - NO SYMPTOMS
1 PUMPER
CHECK CALL
1 PUMPER
HAZMAT/SPILL - MAJOR
3 PUMPERS, CHIEF OFFICER ON CALL
1 PUMPER PLUS 1 FT PUMPER IF IN VOLUNTEER
HAZMAT/SPILL - MINOR
AREA
1 PUMPER PLUS 1 FT PUMPER IF IN VOLUNTEER
WIRES DOWN
AREA
RADIOACTIVE
2 PUMPERS
1 PUMPER PLUS 1 FT PUMPER IF IN VOLUNTEER
BOMB THREAT
AREA
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Clarington Emergency and Fire Services
Emergency Response Service Review:
Clarington Emergency and Fire Services
FLOODING
1 PUMPER
TREE DOWN
1 PUMPER
NATURAL GAS/SMELL OUTDOOR
2 PUMPERS
NATURAL GAS/SMELL INDOOR
2 PUMPERS
NATURAL GAS/RUPTURE
2 PUMPERS
ASSIST:
LIFT - EMERGENCY
1 PUMPER PLUS 1 FT PUMPER IF IN VOLUNTEER
AREA
LIFT - NON -EMERGENCY
1 PUMPER PLUS 1 FT PUMPER IF IN VOLUNTEER
AREA
POLICE - EMERGENCY
1 PUMPER
POLICE - NON -EMERGENCY
1 PUMPER
PUBLIC
1 PUMPER
MUTUAL AID
RESPONSE WILL VARY
OTHER AGENCY
1 PUMPER
MVC - POST ACCIDENT (CLEAN UP)
1 PUMPER
RESCUE:
1 PUMPER PLUS 1 FT PUMPER IN VOLUNTEER
AUTOMOBILE LOCKOUT
AREA
2 PUMPERS, 1 RESCUE, CHIEF OFFICER ON CALL,
ENTRAPMENT
PLUS 1 PT PUMPER IN VOLUNTEER AREA
2 FT PUMPERS, 1 RESCUE, CHIEF OFFICER ON
CONFINED SPACE
CALL PLUS 1 PT PUMP IN VOLUNTEER AREA
1 PUMPER PLUS 1 FT PUMPER IN VOLUNTEER
ELEVATOR
AREA
2 FT PUMPERS, 1 RESCUE, CHIEF OFFICER ON
ROPE RESCUE
CALL
2 FT PUMPERS, 1 RESCUE, CHIEF OFFICER ON
STRUCTURE COLLAPSE
CALL
ICE/WATER - LAKE ONTARIO
2 FT PUMPERS, 1 RESCUE, CHIEF OFFICER ON
CALL, PLUS 1 PT PUMPER IN VOLUNTEER AREA
ICE/WATER - MISCELLANEOUS
2 FT PUMPERS, 1 RESCUE, CHIEF OFFICER ON
CALL, PLUS 1 PT PUMPER IN VOLUNTEER AREA
2 FT PUMPERS, 1 RESCUE, CHIEF OFFICER ON
TRENCH
CALL
1 PUMPER PLUS 1 FT PUMPER IF IN VOLUNTEER
LOCKOUT
AREA
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Clarington Emergency and Fire Services
Emergency Response Service Review:
Clarington Emergency and Fire Services
REMOTE RESCUE 1 PUMPER AND 1 ATV, CHIEF OFFICER O/C
SMOKE:
RESIDENTIAL -APARTMENT/ TOWNHOUSE -
4 PUMPERS, CHIEF OFFICER ON CALL, PLUS 1
SMOKE VISIBLE
AERIAL IF URBAN OR 2 TANKERS IF RURAL
RESIDENTIAL - HOUSE - SMOKE VISIBLE
4 PUMPERS, CHIEF OFFICER ON CALL, PLUS 1
AERIAL IF URBAN OR 2 TANKERS IF RURAL
RESIDENTIAL - HIGHRISE - SMOKE VISIBLE
4 PUMPERS, CHIEF OFFICER ON CALL, PLUS 1
AERIAL IF URBAN OR 2 TANKERS IF RURAL
COMMERCIAL - SMOKE VISIBLE
4 PUMPERS, CHIEF OFFICER ON CALL PLUS 1
AERIAL IF URBAN OR2 TANKERS IF RURAL
INSTITUTIONAL - HOSPITAL - SMOKE VISIBLE
4 PUMPERS, CHIEF OFFICER ON CALL, 1 AERIAL
INSTITUTIONAL - NURSING HOME - SMOKE
VISIBLE
4 PUMPERS, CHIEF OFFICER ON CALL, 1 AERIAL
INSTITUTIONAL - RETIREMENT HOME - SMOKE
VISIBLE
4 PUMPERS, CHIEF OFFICER ON CALL, 1 AERIAL
INSTITUITONAL - SCHOOL / CHURCH - SMOKE
4 PUMPERS, CHIEF OFFICER ON CALL PLUS 1
VISIBLE
AERIAL IF URBAN OR 2 TANKERS IF RURAL
INDUSTRIAL - SMOKE VISIBLE
4 PUMPERS, CHIEF OFFICER ON CALL, PLUS 1
AERIAL IF URBAN OR 2 TANKERS IF RURAL
UNKNOWN SOURCE -SMOKE VISIBLE
2 PUMPERS PLUS 1 PT PUMPER IN VOLUNTEER
AREA
UNKNOWN SOURCE - SMELL OF SMOKE
2 PUMPERS PLUS 1 PT PUMPER IN VOLUTEER
AREA
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For a portion of the emergency calls CEFS responds to, it can do so by exclusively
deploying its guaranteed response full-time firefighter complement of three (3) fully
staffed trucks.
a) Examples of calls that can be addressed using one (1) truck include tree down,
CO detector with no symptoms, and check calls.
b) Two (2) trucks in volunteer areas (stations 3 and 5) are required for natural gas,
medical calls with vital signs absent, motor vehicle collisions, pedestrians struck,
elevator rescues, etc. In all other response areas of Clarington, only one (1)
truck is required. This is due to the fact that the volunteer trucks in Stations 3
and 5 are not a guaranteed response, so a guaranteed response fulltime truck is
dispatched to ensure a response. Upon confirmation that the volunteer truck is
responding, the full-time truck returns to its response area. This however, leaves
the full-time response area without emergency response coverage and adds to
the wear and tear of the fleet.
Risk - CEFS can respond to one (1) single -truck emergency calls, and one (1)
two (2) truck emergency calls simultaneously with the exclusive use of its
guaranteed response full-time firefighting staff. However, it must deploy its
volunteer staff if there are any combinations of simultaneously occurring two (2)
truck response calls. The volunteer response is not guaranteed, and Clarington
can therefore be left vulnerable in this circumstance.
c) Three trucks are required to respond for the smell of smoke, a major hazardous
material spill, vehicle fires and vehicle accidents on a 400 series highway and
highway 115, fire alarms ringing in all occupancies except institutional, and some
rescue calls.
Risk - In instances where a three (3) truck call occurs, CEFS must rely on its
volunteers to respond to all other calls. They are paged to respond to their
station to provide standby services, which unfortunately is not a guaranteed
service. It is possible that with all three (3) full-time trucks engaged in emergency
calls, and particularly in the daytime during weekdays when volunteer response
rates are at their lowest, that Clarington may not have emergency services
available. In these instances, mutual aid would be called, and a significant
delayed response would ensue.
d) Risk - Four (4) or more trucks are required for all other calls, including all
structure fires, ice/water rescues, fire alarms in hospitals, and smoke visible.
Volunteers must respond for CEFS to operate safely and to have enough bodies
to eliminate the hazard. In these instances, CEFS may not be able to equip four
fire trucks to respond, relying instead on the three full-time trucks it has in
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service, and not meeting the NFPA best practice of fifteen (15) firefighters to
safely operate on the fireground.
Risk - In instances where mutual aid or automatic aid is requested/required and
provided by Clarington, volunteers must be relied upon to backfill and provide
standby in Clarington for any subsequent emergency calls that may be received.
Should volunteers not be available, fulltime fire crews may have to return to
Clarington from the mutual aid or automatic aid call they are attending to.
Risk - Simultaneously occurring emergency calls leave the Municipality
vulnerable, with no guaranteed response services available.
In 2022, CEFS responded to 2,535 emergency calls. Of those, 221 or 8.7% of
calls occurred while another CEFS truck was attending to an existing emergency
call. In twenty one (21) instances, or approximately 1 % of the time, three (3)
separate calls occurred simultaneously requiring at least three (3) trucks to be
engaged.
Best Practices
(Appendix C: Clarington FMP 2014)
NFPA 1710 and 1720 Standards are internationally recognized industry best practices
for the initial deployment response of four firefighters to conduct initial fire suppression
operations effectively, efficiently, and safely. This would include the ability to safely
conduct either a quick, limited rescue or limited firefighting operations including the
fireground critical tasks of Incident Command- one (1) firefighter/officer, Pump
Operation — one (1) firefighter, Attack Line - two (2) firefighters (Confine and
Extinguish)
These NFPA standards also speak to the fire service depth of response. The fireground
critical tasks and initial full response assignment (depth of response) identified within
NFPA 1710 utilize the following definition of a residential occupancy: "The fire risk
scenario in a 2,000 square foot, two -storey single-family dwelling without a basement
and with no exposures present. This represents a typical home of wood frame
construction located in a suburban neighbourhood having access to a municipal water
supply including fire hydrants". The NFPA staffing deployment for this residential fire
risk is fourteen (14) firefighters, fifteen (15) if an aerial device is deployed. However, for
this scenario there is a pressurized water source/hydrant. This is not always the case in
Clarington. Five firefighters are needed to shuttle water in Tankers for non-hydranted
areas increasing the fireground demand for firefighters.
For low -risk occupancies a minimum depth of response deployment of four firefighters is
required. For moderate risk occupancies including Group C - Residential occupancies
(Single — Family Dwelling) a minimum depth of response deployment of fourteen (14)
firefighters is required to complete the additional fireground critical tasks based on the
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fire risks present. The additional fireground critical tasks include activities such as
providing an additional fire attack line requiring two firefighters, and providing a Rapid
Intervention Team (RIT) comprised of two firefighters who are assigned the specific task
of being prepared to respond quickly in the event one of the fire attack teams or other
firefighters on scene require immediate assistance. In comparison to the low and
moderate risk occupancies, high risk occupancies such as a nursing home require
additional fireground critical tasks to be completed and a higher minimum deployment of
firefighters. The additional fireground critical tasks include activities such as providing a
dedicated crew of two (2) firefighters for positioning ladders on the building to support
fire suppression and rescue activities, and the provision of an Incident Safety Officer to
oversee and ensure all firefighting activities are conducted safely.
To be able to achieve the identified critical fireground tasks CEFS must respond with a
minimum of four firefighters to low -risk occupancies, fourteen (14) firefighters to
moderate risk occupancies and 24 firefighters to high -risk occupancies. The
recommended depth of response firefighter deployment is identified in Table 13 below.
Table 13: Recommended Depth of Response — Municipality of Clarington
Fireground Critical Tasks
Low Risk
Moderate
Risk
High
Risk
Incident Command
1
1
1
Pump Operator
1
1
1
Additional Pump Operator
0
0
1
Initial Attack Line (Confine &
Extinguish)
2
2
2
Additional Attack Line (Confine &
Extinguish)
0
2
2
Search and Rescue
0
2
2
Incident
Initial Rapid Intervention (RIT)
0
2
2
Response
Ventilation
0
2
2
Water Supply - Pressurized
0
1
1
Forcible Entry Team
0
1
2
Laddering
0
0
2
Exposure Protection
0
0
2
Incident Safety Officer
0
0
1
Accountability
0
0
1
Rehabilitation
0
0
2
Minimum Firefighter Deployment
4
14
24
Appendix C: Clarington Fire Master Plan 2014, page 64
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The Mutual Aid Program for the Region of Durham would be activated to access
additional firefighting resources that may be required in the event of an extreme risk
incident within Clarington.
Staffing
CEFS is a composite fire service with both full-time and part-time/volunteer fire fighters.
CEFS has 64 full-time firefighters, divided into four (4) platoons in order to staff three (3)
guaranteed response full-time trucks 24 hours per day 365 days per year. These three
(3) crews respond from Stations 4, 1, and 2 which have been strategically located in the
geographic areas that receive 92% of all of Clarington's emergency calls.
CEFS has traditionally strived to fill the Council -approved 125 volunteer firefighters
positions, comprised of 25 in each of Clarington's five 5 fire stations. Volunteer
firefighters must live within 5 kms of the fire station and must respond to 30% of
emergency calls. They carry a pager to alert them to when they are required.
CEFS has experienced a declining interest in the number of volunteer firefighter
applicants in recent years. Approximately 15 years ago it was not uncommon to receive
250 applicants, compared to our recent recruitment in 2023 which saw 75 applicants (3
applicants for Station 3)
At the time of this report, Clarington has the following complement of volunteer
firefighters:
Station 1 15
Station 2 22
Station 3 20
Station 4 15
Station 5 12
Total 84
There are 18 volunteers currently completing recruit fire fighter training with an expected
in-service date of July 2023, bringing total complement to:
Station 1 25 (10)
Station 2 22 (0)
Station 3 21 (1)
Station 4 20 (5)
Station 5 14 (2)
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Total 102
Risk - There is a high attrition level in the volunteer ranks, as many are inevitably hired
as permanent firefighters in other fire departments. The following chart shows CEFS
volunteers and their start dates and illustrates this attrition challenge.
New Recruit Attrition Rate
Year
■ Initial Recruit class ■ Number remaining
Observations from this chart include:
Between 2015 and 2023, CFES has hired and trained 119 volunteer firefighters. At a
cost of approximately $14,000 in today's dollars to train and equip each volunteer
before they are placed into service, this is a financial investment of $1,666,000, or
approximately $190,000 per year.
Between 2015 to 2018, the average recruit class was 9.5 volunteer firefighters.
Between 2019 to 2023, the average recruit class grew to sixteen (16) volunteer
firefighters in an effort to replace a growing number of volunteer firefighters leaving the
department.
Between 2015 and 2022, CFES has lost 59 volunteers (57 in the chart, plus two more
since this report was created), or almost 50% of the 119 volunteers hired over this eight
(8) year period. The class of 2023 has not yet completed their recruit training, and one
(1) volunteer has already resigned.
A closer look at the volunteer attrition rate at each Station shows a more revealing
picture.
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Station 1 New Recruit Attrition
2015 2016 2017 2018 2019 2020 2021 2022 2023
Year
■ Initial Recruit Class ■ Number Remaining
Station 2 New Recruit Attrition
2015 2016 2017 2018 2019 2020 2021 2022 2023
Axis Title
■ Initial Recruit Class Number Remaining
Station 3 New Recruit Attrition
2015 2016 2017 2018 2019 2020 2021 2022 2023
Year
■ Initial Recruit Class ■ Number Remaining
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Oppr
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Station 4 New Recruit Attrition
2015 2016 2017 2018 2019 2020 2021 2022 2023
Year
■ Initial Recruit Class Number Remaining
Station 5 New Recruit Attrition
.3
L
u
N
3
v
z
w
0
L
E
3
z
2015 2016 2017 2018 2019 2020 2021 2022 2023
Year
■ Initial Recruit Class Number Remaining
Chart Summar
# of recruits remaining/# hired
Station
Between 2015 and 2022
Retention %
Station 1
6/27
22%
Station 2
16/26
62%
Station 3
8/9
89%
Station 4
9/21
43%
Station 5
5/14
35%
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Risk — The lowest retention rates are in Stations 1,4, and 5. Station 1 is particularly
alarming. One (1) out of every three (3) volunteers who have left CEFS in the past 8
years have been from Station 1. It has the lowest retention rate of all CEFS fire
stations. In the past three years, CEFS has spent $224,000 to train and equip sixteen
(16) volunteer fire fighters at Station 1, and only four (4) remain.
To better understand the volunteer firefighter model and its efficacy today, CEFS has
undertaken a fulsome review through data collection and analysis. (Appendix A).
A summary of the Volunteer Review and Analysis has concluded the following:
• Costing - The total cost of the Volunteer program in 2022 was $1,153,215.53,
comprised of $1,022,171.58 base cost of the program and the new recruit class
cost of $131,043.95. This costing is not inclusive of the major capital assets
associated with the Volunteer program such as fleet and buildings.
• Turnover - Annual retention rates have significantly declined over ten (10) years
while attrition rates have spiked. In 2022 CEFS had its lowest retention rate yet
at 79% and highest attrition rate of 22%.
For the five (5) years between 2013 and 2017 the average annual retention rate
was 90%. For the five years between 2018 and 2022 the average annual
Departmental retention rate has decreased by 10% from 90% to 81 %.
Risk - The Volunteer Review and Analysis offers several reasons for this decline
and anticipates that the decline will continue. CEFS has been stuck in a cycle in
recent years of a constantly churning recruitment process to replace volunteer
recruits who join CEFS with the goal of using their experience as volunteer
firefighters to help them secure full-time firefighting careers elsewhere. This high
turnover rate makes it challenging to invest in longer term training programs and
initiatives, and as well makes it hard for full-time firefighters and volunteer
firefighters to develop good working experiences together.
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Performance
In addition to the increasingly high volunteer firefighter attrition rate and the associated
costs, there is also a change in the performance rates. The CEFS Review suggests a
host of reasons for this decline, but the reality is that with fewer volunteer firefighters
responding to calls today than in the past, program reliability has decreased.
The Performance trend lines for each Station over the past 5 years show clear patterns.
Station 1: 5 Year Average Number of Volunteers Responding Per Call
8
7 6.1
5.7 5.6
6 - � . 5.4
5
3
2
4.7........4.5..7:.
3.5
4 4
—'— Duty Response —*— Standby Response . • Linear (Duty Response) ..... Linear (Standby Response)
Station 1 has seen a decrease in the number of volunteers responding when comparing
2022 with 2018, with approximately 15% fewer for duty response, and 20% fewer for
standby.
Station 2: 5 Year Average Number of Volunteers Responding Per Call
6
5.6
5.2
5.5
5.1
4.6
-
5
15
...4.3.....
• --
3.8
3.9
4
3.7
3.5
3
Duty Response Standby Response inear (Duty Response) ..... linear (Standby Response)
Station 2 is the only Station showing an upward trend when comparing 2022 with 2018,
with approximately the same number for duty response, and an increase of 27.5% for
standby.
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Station 3: 5 Year Average Number of Volunteers Responding Per Call
5.5 5.3 5.3
5
5�::�
4.9:.......:,s, 4.5
4.5 4.7
4.4
4
3.8
3.5
3
-41— Duty Response Standby Response - - Linear (Duty Response) Linear (Standby Response)
Station 3 has seen a decrease in the number of volunteers responding when comparing
2022 with 2018, with approximately 10% fewer for duty response, and 14% fewer for
standby. However, despite their downward trend in duty response numbers, it should be
noted that Station 3 still has the greatest average number of volunteers (4.5) each time
the truck responds from the station.
4—
Station 4: 5 Year Average Number of Volunteers Responding Per Call
5 4.8
4.5
3.5 3.7. .
3 3.2
2.5
3.9
.. ...
3.1 3.1
•f— duty Response —+— Standby Response • • • • , Linear (Duty Response) ... Linear (Standby Response)
Station 4 has seen a decrease of 16% in the average number of volunteers responding
for duty response when comparing 2022 with 2018, and a decline of 15% for standby.
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Station 5: 5 Year Average Number of Volunteers Responding Per Call
5
4.5 4.2
38.. 3.9
3.5
3.5
3.3 ..............
2.5
2 2.3
—0— duty Response Standby Response Lineat(Duty Response) Lineat(Standby Response)
Station 5 has seen a slight decrease in the number of volunteers responding for duty
response, and approximately 23% fewer for standby in 2022 than in 2018.
The performance numbers at each Station show a temporary increase in 2020 and
2021. This is also the time period when Covid-19 was causing many employers to offer
remote work arrangements to their employees. It is possible that this may have
impacted the volunteer program, with a greater number of volunteer firefighters being
able to respond from home offices situated within 5 kms of their stations. Now that the
impact of Covid is mostly over, average response numbers have returned to below pre-
Covid levels.
Quality
CEFS has a robust training program that is designed, facilitated, and delivered by its
Training Division. The Division is comprised of one Chief Training Officer and two
Training Officers, reporting to the Deputy Chief of Training. The Department also
utilizes a Shift Trainer Instructor model where a select number of firefighters receive
specialized training in a limited number of disciplines in order to assist the Training
Division in delivering hands-on training (ie, Water rescue, automobile extrication,
hazardous materials, apparatus driver/pump operator, etc).
In order to maintain a high level of response readiness, firefighters must train daily to
ensure their skills are sharp and ready to be deployed within a second. Some
emergency calls, including structure fires are high risk/skill, low frequency calls and
must be practiced regularly for both service quality and firefighter safety.
To be effective, training must mimic real life as closely as possible. To read about fire
ground operations, or to watch video instruction or attend seminars on the latest fire
ground techniques is good, but not effective as it could be without the ability to put it into
practice.
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CEFS does not have a training/burn tower in which to train and practice its skills. CEFS
is fortunate however to have access to the training compound in Wesleyville through an
agreement with OPG. Firefighters travel on duty to Wesleyville once per year and are
replaced on overtime by off -duty firefighters who are paid under the OPG agreement.
The compound is used this one time per year by full-time firefighters to co -train with
OPG to prepare for emergencies that could occur in the Darlington OPG site. CEFS
also has the use of scrap vehicles that are delivered to its three (3) full-time fire Stations
for practicing auto -extrication techniques and tool familiarity. Medical training is
delivered by Base Hospital each year and conducted in each station. Crews also take
advantage of opportunities presented by local property owners to practice water and ice
rescue skills on their privately owned ponds.
Risks - The Training Division has been very resourceful in piecing together a training
program via the generosity of local residents, an agreement with OPG, and makeshift
training areas in fire station parking lots. There are several limitations, however. In order
to keep full-time trucks in their strategically located fire stations, fire crews must train in
their station area. During recent ice/water training at a local privately owned pond off of
Bowmanville Avenue north of Hwy 407, the crew from Station 1 was on the ice wearing
cold water suits, and using ropes, flotation devices, etc. They were in service for the
Station 1 area with a delayed response of several minutes. Because of this, the other
two fire crews on duty from Stations 2 and 4 were positioned in their trucks on the
response borders between their respective station and Station 1's response area for
several hours. Once the crew from station 1 completed their training, they drove over to
one of the staged crews to replace them. The replaced crew in turn travelled to the
ice/water training location for their training. This was repeated again for the 3rd fire crew.
With a total of 4 shifts, this scenario took place three (3) times per crew x four (4) days
throughout the week to accommodate all firefighters from all 4 shifts. Throughout this
training, emergency response times were delayed across the entire Municipality of
Clarington.
Risk - As well, ice/water rescue requires two trucks and eight (8) firefighters to be
properly performed in an efficient and safe manner. Training was only able to be
conducted with four (4) firefighters, augmented by two (2) training officers, and the shift
training instructor for each crew.
Risk - A similar limitation is in place with live fire training. It occurs once per year at
Wesleyville. To work effectively and safely at the fire scene of a 2000 ft2 home with no
basement and no exposures, a minimum of fifteen (15) firefighters (4 trucks) are
required according to NFPA 1710. Without being able to conduct live fire training
together on a regular basis, fire service quality may not be as good as it could be, and
firefighter safety may become an issue. Quality is directly related to fire dollar loss,
exposure protection, public injuries, business interruption, and environmental
contamination.
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Risk - While CEFS is appreciative for the opportunity to train with OPG at Wesleyville,
the scenarios do not include residential fires, as OPG is not responsible for residential
structures. This is a significant gap in its training program as the majority of fires CEFS
faces are in residential occupancies. Furthermore, CEFS' role when responding to
OPG is one of support, so it is not often that CEFS firefighters are exposed to live fire
training in the interior of the training compound.
1 d) Growth
Growing demand for emergency services.
CEFS recently returned to its pre-COVID tiered response model which is anticipated to
result in an additional 1200 medical calls per year. CFES is expected to respond to
approximately 4,200 calls in 2023. Based upon a population of 104,000, this equates to
one (1) emergency call for every 24.75 people.
Risk - With 19,700 people projected to be added to Southwest and Southeast Courtice
in the next several years, emergency response numbers are anticipated to increase for
the Station 4 area by 796 calls per year, almost doubling its existing response numbers,
at a 93.6% increase.
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Risk -According to Clarington's Planning and Development Department, in addition to
the Southeast and Southwest Courtice population growth numbers above, there will be
an additional 62,000 people calling the south, urban portion of the Clarington community
home in the coming years. At the existing emergency response ratio of one (1) call for
every 24.75 people, it is anticipated that this will result in an increase of 2,505
emergency calls.
Attachment t to PDS-028.23
Mitchell Active and Recently Completed Secondary
Corners ® Plans and Subwatershed Studies
B €g
Courtice - Bowmanville Orono
I
> I -
I
c
r,� m
f �9-'RW r`
I
—Ma le Grove �` r
I — 1
ri -
-
r
i 1
Courtice VL2terfronl and Energy Park
u, T
O Courtice Transit -Oriented Community and GO StaibriA
doted 2021
p )
Lake Onfar[D
_ Fareweu Heigh
- Soper Hills
Southeast Courtice [Approved 2022)
— aTer springs
® Snuth—t Courtice (Approved 2022)
NORh Village
IIL I Bovrmanville East U lban Centre
- W I.d Creek Neighbourhood
Porinson Creek and Tooley Creek SudN,atershed
Study —Adopted 2023)
-B—irranville West Urban Centre and SO Station Area
C Other EKistina Secondary Plan Areas
Soper Creek Sub:eatershed StudyArea
Active and Recently Completed Secondary Plans and Subwatershed Studies
Renderings showing sample concepts for the Courtice Transit -Oriented Community Secondary Plan and
GO Station Area
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Renderings showing sample concepts for the Bowmanville West Urban Centre and Major Transit Station Area
Secondary Plan
Public
Technical
Alternative
Emerging
Draft
Statutory
Recommended
Region of
Meeting and
Background
Land Use
Land use
Secondary
Public
Plan and
Durham
Council
Options
Plan
Plan and
Meeting
Council
Approval
Authorization
Guidelines
Adoption
Southeast
Complete
Courtice
Southwest
Complete
Courtice
Courtice TOC
Next step
and GO Station
Area
Courtice
Next step
Waterfront Park
and Energy
Park
Farewell
Next step
Heights
Bowmanville
Next step
West Urban
Centre and
MTSA
%9"
Next step
Neighbourhood
Bowmanville
Next step
East Urban
Centre
Soper Hills
Next step
Soper Springs
Next step
Wilmot Creek
Next step
Neighbourhood
North Village
Next step
Secondary Plan / MTSA
Estimated Units
Estimated Population
Southeast Courtice'
5,000
12,000
Southwest Courtice'
2,900
7,700
Courtice MTSA2, notel
13,100
19,365
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Secondary Plan / MTSA
Estimated Units
Estimated Population
Courtice Waterfront and Energy Park'
1,000
2,400
Farewell Heights4
866
2,596
Bowmanville West Urban Centre and Major
Transit Station Area'
8,000
12,135
Brookhill Neighbourhood'
2,700
7,400
Bowmanville East Urban Centre'
2,400
4,286
Soper Hills5
3,500
8,800
Soper Springs'
740
2,100
Wilmot Creek Neighbourhood'
800
1,600
North Villages
1,100
2,600
2) Developing Talent
a) The new CEFS Mission statement says that CEFS is "An innovative service
dedicated to protecting our community...". As an innovative service, CEFS is creating a
continuous improvement committee to research leading edge equipment and
techniques and to make recommendations to the Fire Leadership Team. Projects will
be geared to making the services provided to the public more efficient and effective
while being fiscally responsible, resulting in a safer community.
The committee will be comprised of individuals who show potential, and have expressed
interest in moving into future leadership positions in the Department and within the
Municipality. They will be provided with project charters for each research project and
will identify performance measurables including Key Performance Indicators (KPI) as
well as return on investment. They will interact with other Municipal Departments and
represent CEFS with external agencies and other municipalities. They will be exposed
to staff in Financial Services, Clerks, Legal, Strategic Initiatives, and perhaps Council.
They will be coached and supported by individuals on the Fire Management Team and
will be required to make a presentation to the Fire Leadership Team upon completion.
b) Traditionally in the fire service very little was done formally to ensure people were
prepared for new positions. People who made great firefighters, did not necessarily
have the skill set to make great Captains. The Province has recently enacted new
legislation that requires those who wish to become Captains to complete an NFPA 1021
Fire Officer program as of July 1, 2026. This is the first time that credentials to become
Supervisors in the fire service in Ontario has ever been legislatively required. This new
standard of professionalism is long overdue and will have a positive impact on the fire
service in Ontario, and in Clarington.
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In addition to this provincial legislation, CEFS is in the midst of developing its own
leadership program for those progressing through the ranks via the Departmental
promotional process. Captains will have to complete additional leadership training and
projects to help prepare them to be the very best Captains possible. Also, those
wishing to become Platoon Chiefs will be required to complete a more advance
departmental leadership program as a promotional requirement, preparing them for the
PC role and with some exposure to the Deputy Chief role.
c) Not many staff in CEFS have taken advantage of the Municipality's education
program. Courses are currently being identified for every position in CEFS that staff
should consider taking on their own time to develop their skills for future positions.
Having the Municipality invest into staff development sends a strong message that its
people are important, and worthy of investment. Staff will be encouraged by the CEFS
Leadership Team to take advantage of this program and to prepare to take the
Department to new heights.
3) Driving for results and working with financial information
Throughout this review several risks have been identified that may impact the ability of
CEFS to continue to provide effective emergency response services.
These risks have been organized into themes, followed by recommendations, including
any associated costs, to drive results
A. Volunteer program — embracing a new way of thinking
B. Minimum staffing and depth of coverage
C. Keeping up with growth
D. Training
E. Costs and KPIs
A) Volunteer program — embracing a new way of thinking
Declining Volunteer firefighter retention rates
Throughout this services review, it has become clear that there is a volunteer retention
issue. It is apparent that this problem is primarily occurring at Stations 1, 4, and 5 with
retention rates of 22%, 43%, and 35% respectively over the past eight (8) years.
Stations 2, and 3 do not experience the same high turnover rate, with retention of 62%
and 89% over the same time period.
This retention problem is getting worse. For the five (5) years between 2013 and 2017
the average annual retention rate for the Department was 90%. For the five (5) years
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between 2018 and 2022 the average annual Departmental retention rate decreased by
10% from 90% to 81 %.
The Volunteer Review and Analysis offers several reasons for this decline and
anticipates that the decline will continue. CEFS has been stuck in a cycle in recent
years of a constantly churning recruitment process to replace volunteer recruits who join
CEFS with the goal of using their experience as volunteer firefighters to help them
secure full-time firefighting careers elsewhere. This high turnover rate makes it
challenging to invest in longer term training programs and initiatives, and as well makes
it hard for full-time firefighters and volunteer firefighters to develop good working
experiences together.
Despite seeing average annual recruit class sizes of 16 people the past 5 years,
compared to 9.5 in the five (5) years prior to that, CEFS has seen its volunteer
compliment drop from an average of 114.6 from 2013-2017, to 97.6 from 2018-2022. In
other words, despite recruit class sizes being 68% larger now than 5-10 years ago, due
to the high volunteer attrition rates the number of volunteers employed by CEFS is 15%
lower now than 5-10 years ago. CEFS cannot hire enough people to keep up with the
number of people leaving. This loss and replacement cost equates to approximately
$238,000 in recruitment and training value.
Another consequence of the low volunteer retention rate is that the program is primarily
composed of young volunteers with less experience than has been seen in the past. As
the senior volunteer staff are beginning to retire this year and next, there is an
experience gap to the next level of volunteers. This will result in a leadership group who
is not as prepared and experienced as what we have seen. This problem will only
continue to worsen as the retention rates continue to decline.
Parfnrmanra
This review shines a light on the reliability of the volunteer program. Traditionally the
volunteer program has been relied upon for `depth of coverage' response. The initial
response is provided by the full-time trucks, with the volunteer program providing
support functions and relieving full-timers as part of the coverage depth. They also are
primarily responsible for transporting tanker trucks to structure fires, and in some
instances, primarily Stations 3 and 5 responding as the initial truck. However, in recent
years, there has been a growing trend of the volunteer program not being as reliable as
it once was. This is particularly evident in Stations 4 and 5 where the number of
individual volunteers responding has dropped over the past 5 years and is expected to
continue to do so.
Strategic Deployment of Resources
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With the lowest emergency community call demand (95) per year, equipped with the
smallest volunteer complement, the most challenging one for which to recruit, and the
lowest individual volunteer firefighter response rate, consideration should be given to no
longer continuing with Station 5 as a volunteer fire Station. With the growing
emergency service demand in the Southern urban centers, the funds used to maintain
Station 5 and the fire crew might be more wisely invested in the growing South portion
of Clarington. With no plans in place for significant housing growth in the Station 5 area,
emergency call demand is not anticipated to grow in the coming years. An additional
full-time fire station is proposed for Liberty and Concession 4 with a response time
(turnout time + travel time) that would be similar to the existing Station 5 response time
to its coverage area.
In 2020, the 90t" percentile turnout time of the volunteer program at Station 5 was
approximately 7.75 minutes, while the turnout time at Station 1 was approximately 1.75
minutes. Turnout time is the time it takes upon a truck receiving an alarm from Dispatch
to when the truck leaves the station to respond to the call. Upon receiving an alarm, the
truck at Station 1 is on the road, travelling to the Station 5 response area for six (6)
minutes before Station 5 is able to respond, resulting in almost the same coverage
without Station 5 being operational.
2) Minimum staffing and depth of coverage
While the majority of the urban centers in Clarington can be reached within a four (4)
minute travel time, there are several response gaps, particularly in the most populous
urban center. Over half of Bowmanville is outside of the four (4) minute travel time. As
well, with Bowmanville experiencing the greatest demand for emergency service
(almost 50% of emergency calls), there is a risk of further response delays should a call
for emergency service be received when the Station 1 Bowmanville truck is engaged in
another emergency call.
Clarington is served by three (3) full-time fire trucks, each staffed with five (5)
firefighters. Depending upon vacation time, sick time, wsib, parental leaves, etc, the
staffing of each truck is most often at four (4) for a shift total of twelve (12) firefighters on
duty. On these occasions, Clarington cannot meet the NFPA best practice of fifteen
(15) firefighters on scene in eight (8) minutes without the use of volunteer firefighters.
To conduct fireground operations with fewer than fifteen (15) firefighters particularly in
non-hydranted areas where multiple staff are required to continuously shuttle water
back and forth from a water source miles away to the fire scene, there is an impact on
the quality and safety of the service being delivered. It is also not uncommon during
summer months for staffing levels to go to three (3) per truck for a total of nine (9) per
shift. In these instances, having only nine (9) firefighters severely restricts fire ground
operations. Lastly, having three (3) firefighters arrive as the initial fire crew instead of
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four (4) places restrictions on fire operations that can be performed, including interior
firefighting and search and rescue.
CEFS is the only fire service among the south Durham municipalities that runs with
three (3) full-time staff on a pumper truck.
3) Keeping up with growth
CEFS has recently returned to its pre-COVID medical tiered response model. Prior to
COVID, CEFS responded to reports of chest pain, and difficulty breathing. With the
onset of COVID, to help prevent potential exposure to COVID these calls were
suspended. In the first quarter of 2023, the decision was made by the Fire Chief to re-
institute a response to this community need. As a result, it is anticipated that our
Departmental emergency call volumes will increase by approximately 1,200 calls per
year. This increase will result in our full-time trucks being unavailable to respond to
other calls more often than in 2022.
With the growth beginning in the Southeast and Southwest Courtice area, call volume
will increase significantly and will become comparable to that of the Bowmanville area.
With 19,700 people projected to be added to Southwest and Southeast Courtice in the
next several years, emergency response numbers are anticipated to increase for the
Station 4 area by 796 calls per year, almost doubling its existing response numbers, at a
93.6% increase. With this increase in emergency calls, Bowmanville will be left
unprotected, along with Courtice during all two truck and higher emergency responses.
Together, Bowmanville and Courtice call volume will account for approximately 85% of
all emergency call demand, leaving these urban areas unprotected on a daily basis
while other calls are being attended to throughout Clarington by stations 1 and 4.
According to Clarington's Planning and Development Department, in addition to the
Southeast and Southwest Courtice population growth numbers above, there will be an
additional 62,000 people calling the south, urban portion of the Clarington community
home in the coming years. At the existing emergency response ratio of one (1) call for
every 24.75 people, it is anticipated that this will result in an increase of 2,505
emergency calls. It will be difficult for these calls to be addressed with CEFS existing
complement of resources.
4) Training
The ability for a Fire Service to effectively train is the most critical component related to
its ability to provide effective, quality, safe services. Fire Services that conduct frequent,
consistent hands-on training in the myriad of emergency operations that they will be
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engaged in, are able to limit the consequences of emergencies, including injuries,
property loss, business interruption, environmental impact, and fatalities.
CEFS does not currently have a training compound in which to conduct hands-on
training. Fire station parking lots are used for vehicle related training and for small
training props such as forced door entry. However, CEFS cannot conduct hands-on
training in its core function of fire ground operations, with the exception of the use of the
Wesleyville fire tower once per year. Regional comparators in Ajax and Oshawa train
regularly at their own fire towers, with Whitby constructing one in 2024, and Pickering
with plans to construct one at their next new Station.
To be effective, training should mimic what fire personnel will face in a real emergency.
Therefore, the ability to conduct hands on training, particularly live fire with more than
one truck is essential. With its current staffing deployment, CEFS cannot do this without
incurring overtime costs, or without leaving one of its fire response areas with at worst,
no response, and at best a delayed response. The current Fire Chief will not engage in
training with a delayed or non -guaranteed response, leaving overtime as the only option
for multiple truck training. This option is costly, particularly if done on the regular,
consistent basis that is required.
5) Driving for Results and working with Financial Information
Option 1:
1) Redesign the volunteer firefighter program. Suspend the program at Stations 1,
4, and 5 upon the staffing of another full-time truck at Liberty and Concession 4,
and continue with the volunteer program at Stations 2 and 3.
Stations 2 and 3 have the best volunteer retention rates, the best performance
rates, and are strategically positioned to service the far Eastern and Northern
segments of Clarington, as well as Highways 401 and 115.
Stations 1 and 4 have the lowest volunteer retention rates and have the highest
call volume demand. If the volunteer program is to continue at these two
Stations, it is imperative that the number of volunteers be kept at the maximum
capacity of twenty-five (25). This will require constant recruitment and training
cycles to ensure volunteers are replaced and trained as they leave. With the
impending community growth, Stations 4 and 1 will receive approximately 85% of
all emergency call demand, and the demand of volunteers to respond,
particularly during weekdays will increase. Emergency call volume is increasing
in Stations 1 and 4, while at the same time the volunteer hiring pool is
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decreasing. It is becoming increasingly difficult to hire enough volunteers to
replace the number that are leaving each year. It is not a good business model.
Station 5 receives approximately 95 emergency calls per year. Their hiring pool
is approximately 452 people, and their retention rate is 35%. There is no growth
coming to the area so the emergency call demand is not anticipated to increase.
The money that is invested here could be better utilized in areas with growing
demand. The area can be serviced by Station 1, and a new Station being
proposed to be constructed with little if any reduction in emergency response
time.
Begin to provide minimum staffing of four (4) firefighters on all full-time trucks.
(see the overtime risk section following Option #1)
2) Build a new fire station on the site of the Operations facility being constructed at
Liberty and Concession 4 and hire firefighters to staff an additional fire pumper
truck responding from this location.
This new fire station will serve a portion of Bowmanville that sits outside of the
Station 1 response area. It will also provide depth of coverage to properties in
Stations 1, 2, and 4 response areas, ensuring that CEFS can meet the NFPA
best practice of 15 firefighters within eight (8) minutes, 90% of the time.
The new station will provide improved response coverage to hamlets including
Hampton, Mitchell Corners, Tyrone, the 407 and other adjacent areas.
It's response time to Enniskillen will be almost the same as what Station 5 can
provide currently, while ensuring a guaranteed response. It will provide depth of
coverage as a faster second -in vehicle to Orono to help support the Volunteer
Station.
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3) Build a training compound on the site of the Operations facility at Liberty and
Concession 4.
The training compound is desperately needed. Firefighters rely heavily on real -
life practical training. There is a significant opportunity for a dramatic
improvement in this area, which will lead to improved service quality, and
firefighter safety.
4) Renovate fire station 1 to accommodate an additional fire crew and hire fire-
fighters to staff an additional truck to respond from this location.
Hire an additional non-affiliated Administration person to manage the increase in
administrative work resulting from the increase in fire stations/structures and
personnel.
The majority of growth coming to Clarington is in the Courtice and Bowmanville
areas, served by Stations 1 and 4. Having a two -truck Station at Station 1
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provides the depth of coverage that is needed, and will continue to be required
as this area grows. In a few years, Courtice and Bowmanville will generate 85%
of all emergency calls that occur in Clarington. It is essential that CEFS has four
guaranteed response, full-time trucks responding, two from Station 1, one from
Station 4 or 2, and one from the new Liberty Station, in order to meet the NFPA
best practice standard of four (4) firefighters on scene in four (4) minutes, and a
total of fifteen (15) in (8) minutes, 90% of the time.
Having a two truck Station at Station 1 also allows for a truck to be placed into
training on a delayed response, while still having coverage at all 4 Stations. This
is a significant improvement as training currently only takes place at the expense
of response times to emergency calls.
Implementation plan for Option 1:
Staff up by hiring an average of ten (10) full-time firefighters in each of 2024, 2025,
2026, 2027
2024
Hire ten (10) full-time firefighters and place them into service in 2024 as additional staff
in existing Stations (3,3,4) ($1.4 mil at first class - $180k set aside in 2023) = $1.22m =
1.79%
Begin construction of new fire station and training compound in 2024 at the new
Operations facility (Liberty and Concession 4) to be completed in 2025. (Capital funding
of $6.8 million has been included in the Municipality's Development Charges Study for a
new fire station in 2028. Funding should be sufficient for the construction of the new
station and the training/burn tower.
2025
Hire thirteen (13) full-time firefighters and place them in into service in 2025 in the new
Liberty Fire station. Move the ten (10) firefighters hired in the previous year to the
Liberty Fire Station to place an additional truck into service.
Close fire station 5.
Discontinue the volunteer program in Stations 1, 4, 5 (save $720k annually) ($1.82m -
$720k = $1.1 m) = 1.62% savings.
Relocate the CEFS Administration, Management, Logistics, and Training staff from
Station 1 to the Liberty Fire Station.
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2026
Hire 8 new firefighters and place them into service as additional staff in existing Stations
(2,2,2,2) ($1.12 mil), and 1 additional Administration person ($100,000) = 1.79%
Renovate Station 1 to accommodate an additional fire crew to be added in 2027 and
centrally located Fire Prevention Offices. (Use existing capital funding of $1.8 million set
aside for a Station 1 addition in 2024)
2027
Hire 9 new firefighters and place them into service in the re -designed Station 1 to place
an additional truck into service ($1.26 mil) = 1.85%
Relocate Fire Prevention staff from Station 4 to Station 1 to centrally locate service to
residents.
By 2027:
Station 1 — 2 f/t trucks
Station 2 — 1 f/t truck
Station 4 — 1 f/t truck
New Station — 1 f/t truck, Admin, Training, Logistics
Station 3 — Orono — continue as a volunteer station
Station 2 — Newcastle — continue as a composite station
Truck inventory
Proposed
Aerial 11
2007
1 Ascendant - front line pumper/aerial (sell one aerial -1)
Aerial 12
2013
1 Aerial
Pump 10
2016
5 ft pumpers
Pump 11
2022
2 vol pumpers
Pump 12
2012
2 Super tankers (+2)
Pump 13
2008
2 spare tankers (sell 3 tankers - 3)
Pump 14
2015
1 Rescue
Pump 15
2018
Pump 1-22
2016
Pump 1-44
2005
Tanker 11
2019
Tanker 12
2004
Tanker 13
2007
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Tanker 14 2019
Tanker 15 2010
Rescue 11 2006
Totals 2 Aerials 1 Aerial
8 Pumpers 1 Ascendant/pumper, 8 pumpers (4 f/t, 2 volunteer, 2 spare)
5 Tankers 4 tankers (2x3500 gallons, 2x1500 gallons)
1 Rescue 1 Rescue
Total 16 Total 15
Reduce fleet by 1 truck
2023
Buy 2 super tankers to replace three (3) Tankers (2004, 2007, 2010) (in service by
2025). Sell three (3) tankers. New total of 4 tankers (2 Supers x 2024, 2 small x 2019).
Requires fewer firefighters to operate, lowers truck service and operating costs,
provides water more effectively.
Sell Aerial 11 (2007) and replace with Ascendant (pumper/aerial combination) (in
service by 2025). Replaces two trucks (aerial and pumper) with one that is better suited
to a higher density community.
Existing capital dollars have been approved in the 2023 budget for the purchase of
replacement fire trucks.
4tatinn 1
1 Pumper -Crew 1
1 Ascendant - Crew 2
1 new four Seat Tanker
1 Spare pumper
Crew 1 — pumper for all first -in calls
Crew 2 - Ascendant for hydrant areas — jump to 4 seater tanker for non -hydrant areas,
or spare pumper for non -hydrant areas if Crew 1 is tied up at a call
Station 2
1 Pumper
1 new four seat tanker (volunteers)
1 Spare pumper (volunteers)
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Pumper for all first in calls - crew to jump to 4 seat tanker for third -in non -hydrant areas
Station 3
1 Pumper
Station 4
1 Pumper
1 Aerial
1 Small Tanker
Pumper for all first -in calls. Crew to jump to Aerial for all second -in hydrant calls. Jump
to Tanker for all second -in or higher non -hydrant calls.
New Libertv Station
1 Pumper
1 Small Tanker
1 Rescue
Spare pumper
Pumper for all first -in calls. Crew to jump to small Tanker for all second in non -hydrant
calls. Jump to rescue for all 4t"-in fire calls.
Risks of implementing Option #1
Overtime costs
In order to operate safely and to meet the needs of the community, CEFS will need to
staff a minimum of 4 firefighters per truck at all times. This means that when a
firefighter is unable to report for duty due to vacation, WSIB, long-term disability,
parental leave, sickness, and the staffing level on the truck drops below four (4), their
shift must be backfilled by an off -duty firefighter. The replacement firefighter would be
paid at an overtime rate of time and a half for the duration of the 24 hour shift. This
overtime cost can add up and become quite costly.
To keep overtime occurrences low CEFS will deploy a four -step approach:
1) Currently, with the complement of 64 firefighters and 3 full-time trucks in service
there are 1095 vacation spots available (365 x 3) to be selected in the vacation
calendar each year, and a requirement of 924 shifts to be selected per the
Collective Agreement. This leaves a balance of 171 shifts where no vacation
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time is selected resulting in 5 firefighters on the trucks for these shifts. Should
someone call in sick on one of these shifts, the staffing would be reduced from
five (5) to four (4), and no overtime would be required. This is a buffer of one (1),
before overtime is required for these 171 shifts.
With the hiring of the additional forty (40) firefighters, the total full-time
compliment will increase from 64 to 104, and full-time trucks in service from three
(3) to five (5). This will result in additional vacation time being required to be
booked per the collective agreement in the vacation calendar. Vacation allotment
will increase from 1,095 to 1,364. The maximum number of firefighters allowed
off at one time would increase, but would be capped at four (4), resulting in a
capacity of spaces available of 1,460. This would result in a buffer of one (1)
spot on each of the 365 calendar days, and an additional buffer on 96 shifts. In
other words, one (1) firefighter could be off sick, WSIB, parental leave, etc above
and beyond vacation every day for 365 days, and the minimum staffing level
would not drop below four (4) and no overtime would be required. For 96 of
these shifts, there would be capacity for two (2) people to be off sick, above and
beyond vacation before overtime would be required.
2) In addition to the buffer being created from step one (1), CEFS would permit the
Aerial/pumper on the second crew at Station 1 to go down below four (4) staff to
three (3) staff before overtime was called in. This would create an additional
buffer 365 days per year for a total buffer of two (2) people calling in sick, off on
WSIB, parental leaves, etc before overtime would be required to be called.
3) Thirdly, as part of the OPG agreement and in speaking with OPG
representatives, their expectation is that fire trucks responding to OPG for
emergency calls would be staffed with a minimum of four (4) firefighters per truck.
A portion of the annual funding provided by OPG would be used to fund any
overtime required on those trucks that could respond to OPG. This would cover
133 overtime shifts.
4) Lastly, sick time accountability is being increased. Firefighters who are off on
non -culpable absences will not be held accountable. They will however be
offered resources and support from Fire Management to return to work.
However, those who abuse leaves and sick time will be monitored and will be
required to go through additional measures, encouraging them to only call in sick
when they are sick. Applying more consistent and measured requirements to
those who may be abusing leaves will reduce sick time use and reduce the need
for overtime shifts.
Option #2
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Keep the volunteer program as it is designed and create a CEFS school to train those
who would like to be volunteers and who will commit to staying as such for at least five
(5) years.
This is an intriguing idea that may remove some obstacles to entry into the volunteer
firefighting role.
Barrier — financial cost for certification. As of July 2026, all firefighters in the province of
Ontario must be certified to NFPA 1001 and 1002 standards. The cost to obtain these
certifications in privately run schools is approximately $12,000 to $15,000 per person.
In anticipation of this new legislative requirement, CEFS began requiring all applicants
to be certified as a requirement of employment during its most recent recruitment. This
change appears to have impacted the applicant pool resulting in primarily attracting
those individuals who have a career goal of becoming full-time firefighters. This in turn,
exacerbates CEFS's retention problem. Volunteers remain with CEFS for a year or two
until they receive full-time firefighter employment with another Service and then resign
from their volunteer position.
Those who may wish to become and remain as volunteer firefighters in Clarington, with
no intention of becoming full-time firefighters may not be willing to pay the $12,000 to
$15,000 necessary to obtain the mandatory certification. CEFS would remove this cost
for those who would commit to remain as volunteer firefighters. By removing this
financial entry barrier, CEFS may see an improvement in retention numbers as those
who want to remain strictly as volunteer firefighters with CEFS may apply.
There are however some challenges with this model. The purpose of the model would
be to improve retention numbers. CEFS would not be able to differentiate between
those who will remain as volunteers in Clarington, and those who intend to leave to
become fulltime. Therefore, the school model would have to be available to all
applicants who live within five (5) kilometers of a Clarington fire station. Secondly,
requiring volunteers to stay with CEFS after they are hired somewhere as fulltime
firefighters has its own unique challenges. Many fire services still pressure double -
hatters to resign their volunteer positions once they are hired as full-time firefighters. If
a CEFS volunteer decides to resign from their volunteer position prior to the five (5) year
mark, what recourse does Clarington have? As part of a person's volunteer
employment offer an agreement could be made for the person to repay their certification
costs if they leave within five (5) years, and CEFS would recruit to replace them again.
Further consultation is required to determine if this is legally permitted. As well, how
feasible would it be for Clarington to successfully collect the money owed? At the end
of the day, while Clarington may be able to be re-imbursed, this option may not solve
the CEFS retention problem.
It may be worthwhile combining the CEFS certification school option with Option #1 of
this report as a trial to see if it increases the number of long -serving volunteers joining
Stations 2, and 3.
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Option #3
Do nothing. With the decline of the volunteer program, and the growth that is imminent
in Clarington, it is inevitable that the decision to begin to move from volunteers at all
Clarington Fire Stations to a Department comprised of a greater number of full-time
fighters will need to be made at some point. It is apparent that the money being spent
on the volunteer program may be invested in a manner that serves the Clarington
community in a more effective manner.
The Fire Chief has met one on one with several experienced volunteers to solicit their
ideas as to how to improve the recruitment and retention struggle being faced in CEFS.
There are lots of identified challenges but no answers. It has been made clear that
CEFS is not the only Department going through this transformation. OPG, who also has
a fire brigade that is used as a launching pad for those interesting in becoming full-time
municipal firefighters faces the same attrition struggles. It has lost 33 of its last 71
firefighters hired to other Fire Departments.
Articles about the volunteer firefighter recruitment and retention crisis include the
following.
https://www.thestar.com/news/canada/2021/01/10/attracting-retai in u nteer-firefighters-a-
cStationenge.html
https://www.cbc.ca/news/canada/fire-volunteer-firefighters-canada-1.4119003
Final recommendation:
Proceed with Option #1 and pursue what would be involved in creating an internal
volunteer firefighter school for the Volunteer program at Stations 2 and 3.
If Clarington did not have the volunteer firefighter program, it would not have enough fire
fighters and staffed fire trucks to service the existing emergency service demand.
Clarington has relied heavily on this program to meet community need.
However, the program has changed. This review has shown that for a whole host of
reasons, including firefighter certification, a decreasing volunteer applicant pool, and a
decreasing performance/turnout rate, the volunteer program can no longer be relied
upon as it once was.
With the growth that is upon the urban areas of Clarington, it is time to move towards
more full-time firefighters and trucks, and away from as many volunteers and volunteer
trucks. The recommended option in this review achieves a balanced approach in order
to be fiscally responsible to the taxpayer. The recommendation supports continuing
with the volunteer program where it is working (Stations 2, 3), while removing it where it
is not (Stations 1, 4, 5) and re -investing these funds into a guaranteed service response
in the high service demand areas.
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Recommendation Summary
• Discontinue the volunteer program in 2026 in Stations 1, 4, 5
• Build fire station/training facility with new Ops Center at Liberty/Concession 4
• Renovate Station 1 to become 2 truck hall
• Hire 40 full-time firefighters for 2 additional trucks at Liberty Station and Station 1
• Maintain volunteer program at Stations 2, and 3
• Consider a recruitment/training volunteer firefighter school for Stations 2, and 3.
2024
• Hire 10 additional f/t firefighters in existing Stations 1.79%
• Begin construction of new Liberty fire station and training compound at the new
Operations facility to be completed in 2025/26. (DC funding)
2025
• Hire 13 additional f/t firefighters. Place truck in service in Liberty Station. 1.62%
• Discontinue the volunteer program in Stations 1, 4, 5. Close Station 5 building.
• Relocate the CEFS Administration, Management, Logistics, and Training staff
from Station 1 to the Liberty Fire Station.
INIXIS
• Hire 8 additional f/t firefighters in existing Stations and hire 1 additional
Administration person.1.79%
• Renovate Station 1 for an additional fire crew to be added in 2027 (DC funding)
2027
• Hire 9 additional f/t firefighters. Place truck into service in Station 1. 1.85%
• Relocate Fire Prevention from Station 4 to Station 1 to centrally locate service.
ERSR: May 2023 Page 52 of 53
Clarington Emergency and Fire Services
Emergency Response Service Review:
Clarington Emergency and Fire Services
Appendices
Appendix A: Volunteer Suppression Model — Review and Analysis
Appendix B: Clarington Fire Master Plan 5-11-2023, pages 28-59
ERSR: May 2023 Page 53 of 53
Clarington Emergency and Fire Services
Appendix A: Volunteer Suppression Model — Review and Analysis
VOLUNTEER PROGRAM
ANAL PSIS
Clarington Emergency and Fire Services:
Volunteer Suppression Model
Volunteer Model Analysis (VMA)
April 29, 2023
PF
Volunteer Suppression Model Analysis:
Clarington Emergency and Fire Services
Table of Contents
ExecutiveSummary........................................................................................................ 2
Introduction and Background.......................................................................................... 3
Objectives and Data Collection Plan............................................................................... 4
Objectives.................................................................................................................... 4
DataCollection Plan....................................................................................................4
DataSources............................................................................................................5
Accuracy and Confidence Rating.............................................................................. 5
CurrentSituation Analysis............................................................................................... 6
Overall Cost of the Volunteer Program........................................................................ 6
Regular Volunteer Program Cost Breakdown........................................................... 8
New Recruit Class Cost Breakdown....................................................................... 12
Retention.................................................................................................................... 15
VolunteerRetention Data....................................................................................... 19
New Recruit Retention Data................................................................................... 20
Response Rate Actuals............................................................................................. 20
Five Year Response Instances and Average Number of Volunteers Responding.. 21
Five Year Duty Responses and Standby Statistics ................................................. 23
Five Year Average Number Volunteers Responding Per Station ........................... 24
Overall Response Statistics....................................................................................... 27
Threats and Mitigation Strategies for the Volunteer Program ........................................ 29
Conclusion.................................................................................................................... 31
VMA: April 2023 Page 1 of 32
Clarington Emergency and Fire Services
Volunteer Suppression Model Analysis:
Clarington Emergency and Fire Services
txecutive Summary
Clarington Emergency and Fire Services (CEFS) as a composite department is
experiencing increasing external threats to its Volunteer Suppression Model.
Socioeconomical factors, legislative changes, geographic constraints, and Volunteer
labour shortages are impacting the efficacy of the Volunteer environment not just in
Clarington but for all Volunteer Fire Departments across Ontario.
As a result of these challenges, there has been a noticeable decline in the retention of
Volunteers within our current complement. Combined with the rapid growth that
Clarington as a Municipality is experiencing, it is critical for CEFS to complete a review
of our existing services and models to ensure we can continue to operate as efficiently
as possible while continuing to deliver services to the community we serve and plan for
the future. Therefore, a full analytical review was required to be completed specifically
for the Volunteer Suppression Model in the department.
To ensure an accurate assessment of the Volunteer Program, a robust data collection
plan was created based on four (4) major assessment objectives; the overall cost of the
Volunteer program, retention and attrition rates, response rate actuals for each station,
and the overall call volumes of CEFS including calls specific to the Volunteer
complement. Through this review, the following elements were identified;
• The total cost of the Volunteer program in 2022 was $1,153,215.53, comprised of
$1,022,171.58 base cost of the program and the New Recruit class cost
$131,043.95. This costing is not inclusive of the major capital assets associated
with the Volunteer program such as fleet and buildings.
• Annual retention rates have significantly declined over ten (10) years while
attrition rates have spiked. In 2022 CEFS had its lowest retention rate yet at 79%
and highest attrition rate of 22%. We are generally operating at around 77.6% of
our full complement.
• Five (5) year response actuals saw a decline in the number of duty responses
and standby instances with an average of 3.8 volunteers attending each call.
• 69.6% of CEFS's 2022 total call volume required Volunteer response. Total calls
attended by Volunteers decreased to 47.6% from 2013 to 2022. During this same
period, the total calls where Volunteers responded had a reduction to 52.6%.
Going forward, continued data monitoring should be completed to continuously measure
the efficacy of the Volunteer Program. These efforts should be expanded into additional
areas including major capital asset costs as they relate to the program. Additionally,
CEFS should review the compensation model for Volunteers, complete an engagement
survey to identify potential culture issues, and develop a creative recruitment and
retention strategy to attract and retain more long-term Volunteer applicants as potential
mitigation strategies.
VMA: April 2023
Clarington Emergency and Fire Services
Page 2 of 32
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Volunteer Suppression Model Analysis:
Clarington Emergency and Fire Services
Introduction and Background
CEFS is a composite fire department consisting of full-time and part-time suppression
firefighters. As the largest geographic municipality in the Durham Region, Clarington is
made up of four (4) urban centers and fourteen (14) hamlets, creating a blend of urban
and rural firefighting elements.
Clarington in terms of an Emergency and Fire services perspective is highly unique.
With it's several major series highways, nuclear and agricultural sectors, protected
green spaces, increased economic development in both commercial and industrial
sectors, increased high density planning and development, and with the incoming Go -
transit expansion, Clarington as a municipality is growing exponentially and with this
growth comes opportunities and challenges to our municipal services.
As the rapid growth in Clarington continues, it is important that as a department, CEFS
reviews and assesses its existing services and models to determine their efficiency and
effectiveness to meet the demand that growth inherently creates. Part of this
assessment includes reviewing the traditional suppression model that CEFS has
operated with since its inception as a department.
This report focuses on the data collection and analysis of Clarington's Volunteer
Suppression Model. This model has experienced a notable decline in the number of
Volunteers it carries over the last several years and there are continued external
elements that threaten the overall efficacy of this model. Therefore, it was prevalent that
a thorough review of this program be completed to concretely measure its overall
effectiveness and how we can leverage opportunities to improve our suppression
services going forward.
Over the course of several weeks, over a decades' worth of raw data was pulled to
assess various levels of the Volunteer Program. This includes the overall Volunteer
retention and attrition rates, the overall cost of maintaining the Volunteer Program, and
additional cost factors associated with an annual Recruit Class. In addition to this,
actual response statistics were collected and compared against overall response
statistics of the Volunteer Program through a five (5) and ten (10) year lens.
To determine the overall efficacy of the Volunteer Suppression Model in Clarington, it
was critical to utilize data and analytics to maintain an unbiased and neutral assessment
by letting the numbers speak for themselves. Therefore, a comprehensive and objective
data collection plan was created and followed. The data that was collected and
presented in this report originated from real department and organizational records and
was collected and vetted over the course of several weeks to accurately depict the
current situation analysis of the volunteer program.
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Volunteer Suppression Model Analysis:
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Objectives and Data Collection Plan
To measure and review the analytics specific to the current situation of the Volunteer
Program in Clarington, it was prevalent to first get a firm understanding of the critical
factors that needed to be assessed. Once the objectives were determined, the next step
was to create a fulsome Data Collection Plan (DCP). The below sections identify the
objectives of the data collection process as well as the collection plan used to capture
the necessary evidence that speaks to the Volunteer Program as a whole.
Objectives
The scope of this analytics report focused on four (4) major objectives to assess the
overall efficacy of the Volunteer Program.
1. Overall Cost of the Volunteer Program;
• Annual cost of the volunteer program and the annual per person cost.
• The annual base cost of the program (excluding new recruits).
• New recruit class cost.
2. Volunteer Retention;
• Ten (10) year and five (5) year Retention and Attrition Rates.
• Annual Retention and Attrition Rates over a ten (10) year period.
• Ten (10) year staffing levels and headcounts.
• Average staffing levels and termination rates.
• New recruit class staffing levels and attrition rates.
• Long term Volunteers as an expression against the current complement.
3. Responses Attended;
• Five (5) year overall response statistics of Volunteers including response
trends.
• Average response rates for each Station.
• Average number of people responding per response type (Duty Response
and Standby).
• Overall response rates and average number of people responding.
4. CEFS Call Volumes;
• Ten (10) year total CEFS call volumes and total Volunteer call volumes
• Call volumes and response rate trends
• Total number of Volunteers responding on scene and no responses.
• Call volume opportunity costs to the Volunteer Program.
Data Collection Plan
Developing a solid DCP was critical to effectively capture the essential data sources
that exhibit the objectives of the Volunteer Model analysis. The DCP included an
VMA: April 2023 Page 4 of 32
Clarington Emergency and Fire Services
Volunteer Suppression Model Analysis:
Clarington Emergency and Fire Services
assessment on the types of raw data and data sources that were required, where the
data was located, how to access and pull the data, and the length of time required for
the data collection period. The data included in this report represents over ten (10)
years' worth of data and was collected over the course of several weeks.
Data Sources
Most of the data collected was obtained through department and corporate records
consisting of a variety of formats. The below list identifies the data sources used to
obtain the necessary data elements;
• CriSys (Dispatch System) reports for historical and current call volumes, calls
requiring Volunteers and various call data.
• Volunteer biweekly payroll records for actual response attendance records and
per station data.
• Department and corporate payroll records (inclusive of overtime records) for
costing elements.
• Operating and Capital Budgets for costing elements.
• Department usage statistics, equipment, consumables and invoices for costing
elements.
• Department records and databases related to Volunteer staffing, new recruits
and the overall complement.
Accuracy and Confidence Rating
One of the most important factors in the data collection process was to ensure the
integrity and validity of the data sources to ensure the accuracy and reliability of the
analytics in this report. The majority of the data collected came from electronic reports
that were vetted and verified either at the time of collection, or through the approval that
the data received at the time of its original processing (i.e. Corporate payroll records,
Operating and Capital Budgets, paid invoices, etc.) ultimately reducing the likelihood of
inaccuracies.
We do want to highlight that a portion of the data required for this analysis came from
the Volunteer biweekly payroll records called Duty Sheets. The Duty Sheets are
hardcopy records that required a manual count to capture the actual response data
necessary for this report.
Through the data collection process, 20,858 Duty Sheets were vetted manually and
therefore the potential for error in the counts associated with this specific data set
increased. To ensure the accuracy and reliability of this data set, extra auditing was
used to determine the frequency of errors and the ultimate accuracy rating. For every
five (5) sets of counts, there was a duplicate count to audit the accuracy of the data
input. Of the 4,172 audit counts, only 75 errors were produced in the sample set which
VMA: April 2023 Page 5 of 32
Clarington Emergency and Fire Services
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Volunteer Suppression Model Analysis:
Clarington Emergency and Fire Services
means the overall Duty Sheet data that was tabulated is within a 1.79% accuracy rating
(or a 98.21 % confidence rating). This means the potential for error in the Duty Sheet
data that was collected is less than 1.8% which is well within the acceptable standard.
Current Situation Analysis
To garner an accurate depiction of the current state of the Volunteer program, the
following objectives have been fully assessed in detail and are demonstrated throughout
the below sections of this report. This includes a full costing of the program, volunteer
retention statistics and staffing numbers, the response rate actuals and the overall call
volumes of the department.
Overall Cost of the Volunteer Program
When identifying and determining the total costs associated with the Volunteer
Program, there are two (2) distinct elements that produce the overall carrying cost for
the volunteer model in Clarington: the overall regular volunteer program maintenance
and the annual new recruit class.
In 2022, the overall volunteer program cost was $1,153,215.53 as a whole and is
approximately $11,648.64 per person based on an average of 99 Volunteers in 2022.
The annual maintenance cost of the Volunteer Model (excluding new recruits) was
$1,022,171.58 total, costing approximately $10,417.76 per person. The New Recruit
class in 2022 had a total of nine (9) new recruits which cost $14,560.40 per person just
for the period of onboarding up to completion of the recruit class. The overall cost of the
2022 New Recruit class was $131,043.95. These numbers are illustrated in greater
detail in the costing breakdown tables below.
The cost factors collected and assessed to determine the above figures included a
variety of elements such as wages paid, legislated employer paid payroll costs, training
and courses inclusive of in-house administration, program development and
preparation, direct and indirect labour costs associated with training and instruction,
capital equipment replacements (excluding apparatus and stations), new equipment
purchases, consumables, corporate expenses and departmental expenses.
It is important to note that capital costs associated with apparatus and station
maintenance were not included in this cost analysis. Costs associated with the
purchase, maintenance and replacement of dedicated part-time apparatus and stations
are not included in this initial report. For a more fulsome breakdown, it is recommended
to take a greater look at and explore the department's tracking and quantification
methods of Volunteer specific capital item usage, replacement, and maintenance to
include in a future costing analysis.
VMA: April 2023 Page 6 of 32
Clarington Emergency and Fire Services
Volunteer Suppression Model Analysis:
Clarington Emergency and Fire Services
The below costs have been assigned as an individual cost per Volunteer/ New Recruit
as well as the overall cost per Volunteer Firefighter based on the 2022 average number
of firefighters which was 99, inclusive of the nine (9) new recruits. Please note, in
instances where overlap between the new recruit numbers overlapped costs captured in
the regular volunteer program costs, the new recruit costs were isolated to the Recruit
Class costs to prevent duplication of costing throughout this analysis.
OVERALL VOLUNTEER PROGRAM COST IN 2022
Total Volunteer Program Cost
$
1,022,171.58
Total New Recruit Class Costs
$
131,043.95
TOTAL VOLUNTEER PROGRAM COSTS FOR 2022
$
1,153,215.53
Average Vol Count in 2022 - 99
Average Cost Per Volunteer Firefighter
$
11,648.64
TOTAL VOLUNTEER PROGRAM COST IN 2022
Training Wages Paid
$
160,609.74
Base Wages Paid
$
666,855.97
Legislated Employer Paid Payroll Requirements
$
55,414.00
Equipment Replacements
$
32,523.50
Learning Materials
$
14,871.60
Training Courses
$
34,650.00
Duty Sheet Cost
$
106.39
Carbon Paper Cost
$
54.98
Training Program and Instruction Costs
$
41,111.30
Miscellaneous Consumables
$
1,235.70
Corporate Expenses
$
14,738.40
TOTAL VOLUNTEER PROGRAM COSTS FOR 2022
$
1,022,171.58
Average Vol Count in 2022 - 99
Total Cost Per Volunteer
$
10,417.76
VMA: April 2023 Page 7 of 32
Clarington Emergency and Fire Services
Volunteer Suppression Model Analysis:
Clarington Emergency and Fire Services
TOTAL NEW RECRUIT CLASS COST IN 2022
New Recruit Wages Paid
$
36,641.52
Equipment
$
33,853.22
Learning Materials
$
1,487.16
Consumables
$
1,642.32
Training Courses
$
3,573.00
Training Program and Instruction Costs
$
48,277.17
Live Fire Training & Full -Time Staffing Costs
$
5,569.56
TOTAL NEW RECRUIT CLASS COSTS FOR 2022
$
131,043.95
9 New Recruits in the 2022 Recruit Class
Total Cost Per New Recruit
$
14,560.44
Regular Volunteer Program Cost Breakdown
The regular Volunteer Program costs excluding the new recruit class makes up
approximately 88.63% of the total Volunteer Program in Clarington with a total
maintenance cost of $1,022,171.58 or $10,417.76 per person.
The below cost breakdown details the costs associated with the 2022 Volunteer
Program excluding the New Recruit Class. The Volunteer Program had an average of
99 firefighters in 2022.
Total Training Wages
Station 1 - 2077 Hours
$
45,221.14
Station 2 - 2515.8 Hours
$
36,510.79
Station 3 - 1587 Hours
$
35,524.11
Station 4 - 1094.5 Hours
$
22,885.46
Station 5 - 970.5 Hours
$
20,468.24
2022 Officer Dev. - 180 Hours
$
2,611.80
TOTAL WAGES PAID
$
160,609.74
Average Vol Count in 2022 - 99
Total Training Wages Paid Per Person
$
1,622.32
VMA: April 2023 Page 8 of 32
Clarington Emergency and Fire Services
Volunteer Suppression Model Analysis:
Clarington Emergency and Fire Services
Total Base Pay
Total Wages Paid in 2022
$
864,107.23
Minus Training Wages Paid
$
160,609.74
Minus New Recruit Training Wages
$
36,641.52
TOTAL BASE WAGES PAID
$
666,855.97
Average Vol Count in 2022 - 99
Total Base Pay Per Person
$
6,735.92
Legislated Employer Paid Payroll Requirements
EHT
$
14,951.00
CPP
$
29,563.00
WSIB
$
10,900.00
TOTAL EMPLOYER PAID REQUIREMENTS
$
55,414.00
Average Vol Count in 2022 - 99
Total Employer Paid Requirements Per Person
$
559.74
Average Equipment Replacement Costs
Bunker Gear (10 per year on avg)
$
19,729.80
Webbing (0 per year)
$
-
Gloves (13 per year on avg)
$
1,961.83
Boots 8 per year on avg)
$
1,447.60
Mic Keeper (0 per year)
$
-
T-Shirts 0 per ear
$
-
Uniform Shirt (0 per year)
$
-
Balaclava (15 per year on avg)
$
1,087.20
Helmet (12 per year on avg)
$
4,835.28
FIT Testing (Completed Every 2 years - 45 vol)
$
862.14
15 mins @ 1.5 OT x ($51.09 per hour)
Pager (3 per year on avg)
$
2,584.65
PIT PASS/PAT Tags (replace 3 per year)
$
15.00
TOTAL EQUIPMENT COSTS
$
32,523.50
Average Vol Count in 2022 - 99
Total Equipment Costs Per Person
$
328.52
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Volunteer Suppression Model Analysis:
Clarington Emergency and Fire Services
Learning Material Costs
E-Library Access
$
16.99
Vector Solutions Access - LMS
$
125.00
Resilient Minds Textbook
$
23.25
TOTAL LEARNING MATERIAL COSTS
$
14,871.60
Average Vol Count in 2022 - 99 (minus 9 new recruits)
Total Learning Materials Cost Per Person
$
165.24
Course Costs
EMR per person
$
320.00
Diversity and Inclusion Training
$
-
OFC Courses 28 ppl used this in 2022 per person
$
65.00
TOTAL COURSES
$
34,650.00
Average Vol Count in 2022 - 99 (minus 9 new recruits)
Total Course Costs Per Person
$
385.00
Duty Sheet Costs
Duty Sheet Purchase 5000 sheets
5000
Cost of Purchase 50 pads x 100 sheets each
$
255.00
Cost per sheet
$
0.05
Average Duty Sheets Used (2086 per year)
2086
TOTAL DUTY SHEET COST
$
106.39
Average Vol Count in 2022 - 99
Total Duty Sheet Cost Per Person
$
1.07
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Clarington Emergency and Fire Services
Volunteer Suppression Model Analysis:
Clarington Emergency and Fire Services
Carbon Paper Costs
Carbon Paper Purchase 200 sheets
200
Cost of Purchase 2 packs x 100 sheets each
$
49.98
Cost per sheet
$
0.25
Average Sheets Used 220 per ear
220
TOTAL CARBON PAPER COST
$
54.98
Average Vol Count in 2022 - 99
Total Carbon Paper Cost Per Person
$
0.56
Training Program and Instruction Costs
Program Admin and Prep
$
24,705.25
300 hours 50150 @ CTO & TO rates inclusive of 30%
Training Officers OT Paid
$
5,591.12
Training Officer Indirect Cost
$
3,310.97
CTO OT Paid
$
5,362.77
CTO Indirect Cost
$
777.02
STI Paid
$
1,363.61
TOTAL TRAINING PROGRAM LABOUR COST
$
41,111.30
Average Vol Count in 2022 - 90
Total Training Program Labour Cost Per Person
$
456.79
Miscellaneous Consumables
Towing Expense for Auto Extrication
$ 1,235.70
TOTAL CONSUMABLES
$ 1,235.70
Average Vol Count in 2022 - 99 (minus 9 New Recruits)
Total Learning Materials Cost Per Person
$ 13.73
VMA: April 2023 Page 11 of 32
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Volunteer Suppression Model Analysis:
Clarington Emergency and Fire Services
Corporate Expenses
HR Payroll Software - Cost for Full Compliment
$
15,200.00
E1 Office License $100 per user @ 27 users
$
2,700.00
Additional IT Related User Account Fees
$
-
TOTAL CORPORATE COSTS
$
14,738.40
Average Vol Count in 2022 - 99
Total Corporate Costs Per Person
$
148.87
New Recruit Class Cost Breakdown
The total cost of the New Recruit class in 2022 was $131,043.95 making up
approximately 11.36% of the overall Volunteer Model cost in Clarington. Overall, it costs
approximately $14,560.40 per new recruit. This number will fluctuate slightly based on
the number of new recruits included in each annual recruit class, however, this figure is
quite costly when we lose these new recruits shortly after finishing the recruit class due
to a number of factors such as other departments hiring full-time. In recent years, we
have lost several new recruits shortly after finishing the recruit class or within their first
several months of responding due to external recruitment from other departments.
The below cost breakdown details the costs associated with the 2022 New Recruit
Class. The New Recruit Class had a total of 9 recruits representing Stations 1 through
4. Station 5 did not have any new recruits in 2022.
Total New Recruit Wages Paid
Station 1 - 658 Hours
$
13,897.10
Station 2 - 400 Hours
$
8,575.41
Station 3 - 312.5 Hours
$
6,736.27
Station 4 - 342.5 Hours
$
7,432.75
Station 5 - 0 Hours
$
-
TOTAL WAGES PAID
$
36,641.52
9 New Recruits in the 2022 Recruit Class
Per New Recruit Wage
$
4,071.28
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Volunteer Suppression Model Analysis:
Clarington Emergency and Fire Services
Equipment Costs
Bunker Gear
$
1,972.98
Webbing
$
10.00
Gloves
$
150.91
Boots
$
180.95
Mic Keeper
$
37.50
T-Shirts
$
11.00
Uniform Shirt
$
37.00
Balaclava
$
72.48
Helmet
$
402.94
FIT Testing - In house cost
$
19.16
15 mins @ 1.5 OT x $51.09 per hour
Pager
$
861.55
PIT PASS/PAT Tags
$
5.00
TOTAL EQUIPMENT COSTS
$
33,853.22
9 New Recruits in the 2022 Recruit Class
Per New Recruit Wage
$
3,761.47
Learning Material Costs
E-Library Access
$
16.99
Vector Solutions Access - LMS
$
125.00
Resilient Minds Textbook
$
23.25
TOTAL LEARNING MATERIALS
$
1,487.16
9 New Recruits in the 2022 Recruit Class
Per New Recruit Learning Materials
$
165.24
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Clarington Emergency and Fire Services
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Clarington Emergency and Fire Services
Consumable Costs
Drywall
$
153.00
Rebar
$
-
Flat Bar
$
-
Bolts for fortress prop
$
18.00
Metal doors for crush prop
$
-
Sheets of OSB
$
155.25
Wood for Force Entry
$
72.00
Wire Entanglement
$
18.00
Extinguishers
$
315.00
Vehicles for Auto -Ex
$
787.50
Towing Expense
$
123.57
TOTAL CONSUMABLES
$
1,642.32
9 New Recruits in the 2022 Recruit Class
Per New Recruit Consumables Cost
$
182.48
Course Costs
EMR
$
2,880.00
Diversity and Inclusion Training
$
108.00
OFC Courses
$
585.00
TOTAL COURSES
$
3,573.00
9 New Recruits in the 2022 Recruit Class
Per New Recruit Course Cost
$
397.00
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Clarington Emergency and Fire Services
Volunteer Suppression Model Analysis:
Clarington Emergency and Fire Services
Training Program and Instruction Costs
Program Admin and Prep
$
6,269.29
80 hours @ TO rate inclusive of 30%
Training Officers OT Paid
$
10,112.24
Training Officer Indirect Cost
$
13,596.51
CTO OT Paid
$
10,808.55
CTO Indirect Cost
$
5,309.64
STI Paid
$
2,180.94
TOTAL TRAINING COST
$
48,277.17
9 New Recruits in the 2022 Recruit Class
Total Training Program Cost per person
$
5,364.13
Live Fire Training & Full -Time Staffing Costs
Full -Time Captain @ $57.41
$
2,066.76
Full -Time 1 st Class FF x 2 @ $48.65
$
3,502.80
3 full days OT from 8: 00 a.m. to 4: 00 p.m.
TOTAL LIVE FIRE TRAINING COST
$
5,569.56
9 New Recruits in the 2022 Recruit Class
Per New Recruit Live Fire Cost
$
618.84
Retention
The overall retention of our Volunteer complement has been expressed in several ways
throughout this report. Retention was calculated through an annual lens in addition to a
five (5) and ten (10) year view of our staffing trends. The Volunteer complement has
gone from a ten (10) year retention period of 86% to a five (5) year retention rate of
82%. As our retention declines, our attrition rates with our Volunteers have increased
from 15% (10 year) to 19% (5 year).
Of our current complement (2022), only 35% is made up of long-term Volunteers who
have been with us for at least ten (10) years or more. Only 46% of our current
complement has been with us for five (5) years or more, which is only 12% more than
our ten (10) years of service or more staff. These numbers are very important because
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they represent our most experienced and skilled Volunteers that will gradually exit our
complement over the next few years.
When you consider our five (5) year average end of year headcount of 97 people
(inclusive of new recruits), we are generally running at 77.6% of our full volunteer
complement of 125, meaning we are consistently requiring higher numbers of new
recruits (which translates to increased costs of the new recruit program) as we are
losing more and more experienced Volunteers through attrition at the same time. This
will ultimately increase the overall costs of the volunteer program, with limited
opportunity for long serving volunteers to share their knowledge and experience to our
newer staff before they exit the complement.
In addition to this, we have about a 5% attrition rate for our new recruits. This means
that during their first year with us, we lose 5% of our new recruits before they even
reach one year of service with the department.
The below graph demonstrates a ten (10) year view of the Volunteer program and the
significant decline of our volunteer retention. This graph is inclusive of our five (5) year
(82%) and ten (10) year (86%) retention trendlines and how they interact with the
annual retention rates. Last year we had our lowest annual retention rate of 79%.
Volunteer Retention: 10 Year View
100%
95%
95% 9
90%
8E
85%
82
80%
75%
2013 2014 2015 2016 2017 2018 2019 2020 2021
Annual Retention Rate 10 Year Retention Rate (86%)
5 Year Retention Rate (82%) • • • • • Linear (Annual Retention Rate)
79%
2022
VMA: April 2023 Page 16 of 32
Clarington Emergency and Fire Services
PF
Volunteer Suppression Model Analysis:
Clarington Emergency and Fire Services
In addition to the above graph, the below demonstrates the attrition rate trends through
a ten (10) year period. This graph is inclusive of our new recruit attrition rate (5%) and
our annual attrition rates of our regular complement excluding new recruits. Both
attrition rates for new recruits and the regular complement are displaying an increasing
trend with our highest attrition rate occurring last year with 22%.
25%
20% 19%
Volunteer Attrition Rates: 10 Year View
22%
20%
19%
2013 2014 2015 2016 2017 2018 2019 2020 2021 2022
Annual Attrition Rate New Recruit Attrition Rate
10 Year Attrition Rate
• • • • • Linear (Annual Attrition Rate)
VMA: April 2023
Clarington Emergency and Fire Services
5 Year Attrition Rate
Linear (New Recruit Attrition Rate)
Page 17 of 32
Volunteer Suppression Model Analysis:
Clarington Emergency and Fire Services
The below data table represents the overall retention statistics that were calculated. For
each data element, a five (5) year and ten (10) year calculation was produced to help
define and demonstrate the trends challenging our complement. As displayed below,
there is a steady general reduction to the overall volunteer complement that is occurring
through most data segments related to retention and staffing counts.
Overall Retention Statistics
Data Element:
5 Year Average
10 Year Average
Annual Retention Rate
82%
86%
Attrition Rate
19%
15%
New Recruit Attrition Rate
5%
5%
Average Annual Headcount (excluding new
recruits)
93
101
Average Terminations per year
19
16
Percentage of New Recruits Based on
Complement
15%
13%
Average Headcount in New Recruit Class
15
14
Average New Recruit Terminations
1
1
Average End of Year Staffing Totals inclusive of
New Recruits
98
106
VMA: April 2023 Page 18 of 32
Clarington Emergency and Fire Services
Volunteer Suppression Model Analysis:
Clarington Emergency and Fire Services
voiunzeer retention Data
The below table demonstrates the various annual retention data over a ten (10) year
period. Of note, 2022 was the most challenging year for our complement with a
continuous decline in our retention rate, new recruit attrition rate and the lowest end of
year staffing total while also showing the highest attrition rates and total number of
terminations.
Start of
End of Year
End of Year
New
Year
Staffing
Annual
Attrition
Recruit
Headcount
Headcount
Total Number
Total
Year
Retention
Rate
Attrition
(excluding
(excluding
of
(inclusive of
Rate
Rate
new
new
Terminations
new
recruits)
recruits)
recruits)
2022
79%
22%
11%
103
81
23
89
2021
85%
16%
6%
101
86
16
103
2020
81%
20%
6%
99
80
20
96
2019
82%
18%
0%
95
78
17
96
2018
81%
19%
0%
113
92
21
104
2017
91%
10%
8%
112
102
11
113
2016
89%
13%
15%
114
101
15
112
2015
95%
5%
0%
119
113
6
114
2014
82%
18%
0%
115
94
21
119
2013
93%
7%
0%
ill
103
8
115
VMA: April 2023 Page 19 of 32
Clarington Emergency and Fire Services
Volunteer Suppression Model Analysis:
Clarington Emergency and Fire Services
New Recruit Retention Data
The below table demonstrates the retention data specific to new recruits throughout a
ten (10) year period. As our attrition rates increase, the reliance on and pressure to
recruit more Volunteers increases which has been extremely challenging in the current
environment, especially when attracting and retaining staff has become increasingly
difficult due to Volunteer labour shortages in the province.
Last year (2022) we were only able to attract nine (9) new volunteers when our 2021
end of year headcount was only 103, putting us at 89.6% of our full complement at the
beginning of 2022. Of our nine (9) new recruits, we ended up losing one of these
recruits within their first year as a Volunteer because they were hired on full-time by
another department. In this instance, this new recruit didn't even get the opportunity to
respond to any calls as a Volunteer before their resignation, resulting in a zero return on
investment for this recruit. This example is a very real ongoing challenge for our
Volunteer model.
Percentage of
End of Year
New Recruit
New Recruits
New Recruit
New Recruit
Staffing Total
Year
Attrition Rate
Against Annual
Numbers
Terminations
Inclusive of
Staffing
Complement
New Recruits
2022
11%
9%
9
1
89
2021
6%
18%
18
1
103
2020
6%
17%
17
1
96
2019
0%
19%
18
0
96
2018
0%
11%
12
0
104
2017
8%
11%
12
1
113
2016
15%
11%
13
2
112
2015
0%
1%
1
0
114
2014
0%
22%
25
0
119
2013
0%
11%
12
0
115
Response Rate Actuals
The response rate actuals calculated and displayed below are based on the response
instances where Volunteers attended. This data section is not inclusive of calls that
were not attended by Volunteers. This information is captured in the overall response
statistics in the next section of this report. The total number of responses is based on
the Duty Sheets submitted by each station for payroll purposes and the same call
VMA: April 2023 Page 20 of 32
Clarington Emergency and Fire Services
Volunteer Suppression Model Analysis:
Clarington Emergency and Fire Services
numbers requiring responses from more than one station are not separated from the
totals.
The justification for including this data set in this report is because it identifies the
number of actual responses per station over a five (5) year period, while providing the
average number of Volunteers responding per station when they attended through
either a Duty Response or Standby instance. Therefore, the response statistics in this
section are separated based on Duty Responses and Standby Responses.
As discussed under the DCP section of this report, the CriSys dispatch system does not
house the data containing what or how many volunteers responded to each call.
Therefore, the only way to accurately capture this data was to utilize the Duty Sheets to
determine response actuals over a five (5) year period.
Five Year Response Instances and Average Number of Volunteers Responding
The below graph demonstrates the combined total responses attended for all stations
over a five (5) year period. This data shows a declining trend with our Volunteer
attendance of both response types. This could be because the call volumes are also
declining as well (as identified in the overall response volumes section of this report),
however the slope of the trendlines portrayed in this graph and the average number of
volunteers responding in the next graph, clearly attribute that this downward trend is not
completely due to an overall decline in CEFS call volumes.
5 Year Overall Duty Response and Standby Instances Attended
1700 1651
1600
1487
1500 •-
1400
1300
1200 1104 1117
1100 ................
1000
900
800
700
2018 2019
t Duty Response 1104 1117
—*--Standby Response 1487 1651
--*--Duty Response
• • • • Linear (Duty Response)
\1222 — • -
1037
0•••...... ..
877
2020 2021 2022
950 877 1037
1222 1149 1436
t Standby Response
• • • • Linear (Standby Response)
VMA: April 2023 Page 21 of 32
Clarington Emergency and Fire Services
..I
Clarington Emergency and Fire Services
The five (5) year average number of Volunteers responding per call depicted below
identifies that we are also seeing a decline in the total number of volunteers responding
to each instance. In 2022, we had an average of 3.8 people attending Duty Response
instances while we had and average of 4.0 Volunteers attending Standby calls.
An interesting point of data in the below graph is the peak in 2020 for Duty Responses.
In 2020 we changed our Tiered response type to reduce the number of medical calls
our suppression staff were required to attend to reduce exposure and potential
transmission of the COVID-19 virus. We had quite an increase in the average call
responses for Volunteers in this same year which can be attributed to the fact that most
employers required their staff to work from home which likely opened the availability of
our Volunteers to respond to more calls through the day even though we had less call
volumes overall in the department.
5 Year Average Number of Volunteers Responding Per Call (All Stations)
4.8 4.7
4.6
4.4
4.2
4
3.8
3.6
3.4
3.2
3
4.5
3.8 3.8
2018 2019 2020 2021 2022
tDuty Response 4.2 3.8 4.6 3.9 3.8
—*—Standby Response 4.4 4.5 4.7 4.7 4
--*--Duty Response Standby Response • • • • Linear (Duty Response) • • • • Linear (Standby Response)
VMA: April 2023 Page 22 of 32
Clarington Emergency and Fire Services
Clarington Emergency and Fire Services
rive rear Juty Responses and Standby Statistics
Capturing the individual performance of each station was important to show the trends
exhibited over a five (5) year period. Stations 1, 2 and 4 are full-time and located closer
to the lakeshore and typically experience more call instances. As a result, these three
stations generally experience a higher frequency of standby calls. Being solely
Volunteer, Stations 3 and 5 are located towards the northern part of the Municipality in
Orono and Enniskillen respectively, and typically experience fewer call volumes than the
southern stations.
400
350
300
250
200
150
100
50
0
+ 2022
t 2021
+ 2020
—db---2019
t 2018
5 Year (2022-2018) Duty Response Instances Per Station
Station 1
Station 2
Station 3
Station 4
Station 5
326
245
219
125
122
285
164
216
96
116
282
198
203
128
139
373
216
263
109
156
351
216
252
137
148
t 2022 --e-2021 --o-2020 2019 t 2018
VMA: April 2023
Clarington Emergency and Fire Services
Page 23 of 32
Volunteer Suppression Model Analysis:
Clarington Emergency and Fire Services
The below chart represents the Standby Responses for each station over a five (5) year
period. The full-time stations backed up by Volunteers generally experience more
Standby instances than Stations 3 and 5.
700
600
500
400
300
200
100
0
--0-2022
2021
2020
2019
2018
5 Year (2022-2018) Standby Response Instances Per Station
Station 1
Station 2
Station 3
Station 4
Station 5
514
351
198
258
155
394
233
216
197
109
386
239
205
241
151
611
357
249
270
164
506
359
243
243
136
t 2022 r 2021
2020
2019 t 2018
Five Year Average Number Volunteers Responding Per Station
Again, the individual station performance is demonstrated below with the average
number of volunteers responding through Duty Responses and Standby instances that
occurred over a five (5) year period. Showing the individual performance numbers of
each hall helps to clearly define the trends affecting each station.
VMA: April 2023 Page 24 of 32
Clarington Emergency and Fire Services
PF
Volunteer Suppression Model Analysis:
Clarington Emergency and Fire Services
Station 1:
Station 1 has seen a decrease in the number of Volunteers responding in both Duty
Responses and Standby instances over a five (5) year period. In general, Standby
instances at Station 1 have more Volunteers attending on average in comparison to
Duty Responses.
Station 1: 5 Year Average Number of Volunteers Responding Per Call
8
6.8
7
6.1
6
5.7
5.6
5.4
5
4
4.7...
4.5..........
4
4
3
3.5
2
2018
2019
2020
2021
2022
-*-Duty Response
4.7
3.5
4.5
4
4
Standby Response
6.8
6.1
5.7
5.6
5.4
f Duty Response Standby Response
• • • • • •
Linear (Duty Response)
• • • • • • Linear (Standby Response)
Station 2:
Station 2 has seen an increase in the number of Volunteers attending Standby
instances while also exhibiting a slightly downward trending response average for Duty
Response instances.
Station 2: 5 Year Average Number of Volunteers Responding Per Call
6
5.6
5.5
5.2
5.1
5
4.
4.5
4. . .
4
4:3........
3.5
3.8
3.7 3.9
3
2.5
2
2018 2019
2020
2021 2022
+Duty Response
4 3.8
4.3
3.7 3.9
-*--Standby Response
4 4.6
5.2
5.6 5.1
t Duty Response !
Standby Response • • • • • •
Linear (Duty Response)
• • • • • • Linear (Standby Response)
VMA: April 2023 Page 25 of 32
Clarington Emergency and Fire Services
Clarington Emergency and Fire Services
Overall, Station 3 is seeing a downward facing trend in both Standby and Duty
Response average attendance.
Station 3: 5 Year Average Number of Volunteers Responding Per Call
5.5 5.3 5.3
5
5 .. 4.7.
.............. ........:..:4:.g::............. 4.5
4.5 4.6 4.7
4.4
4
3
3.5 .8
3 2018 2019 2020 2021 2022
+Duty Response 5 4.7 4.9 4.7 4.5
Standby Response 4.4 4.6 5.3 5.3 3.8
f Duty Response Standby Response • • • • • • Linear (Duty Response) • • • • • • Linear (Standby Response)
Station 4:
Station 4 is consistent with their downward trending response attendance with a slight
peak in 2020 and then a resumed declining trend occurring in 2021 and continuing in
2022 with an average of three (3) people attending both Standby and Duty Responses.
Station 4: 5 Year Average Number of Volunteers Responding Per Call
5
4.8
4.5
4 3.J'...............1 9,
..................
3.9
3.5 3.7' .........
3.3
3 3.2
3.1
3.1
2.5
2
2018 2019
2020
2021
2022
+Duty Response 3.7 3.2
3.6
3.1
3.1
+Standby Response 3.9 3.9
4.8
3.9
3.3
Duty Response Standby Response • • • • • •
Linear (Duty Response)
• • • • • • Linear (Standby Response)
VMA: April 2023 Page 26 of 32
Clarington Emergency and Fire Services
Volunteer Suppression Model Analysis:
Clarington Emergency and Fire Services
StMinn 5-
Lastly, Station 5 has a downward trending call attendance for Standby instances and a
slightly increasing attendance volume for Duty Responses.
Station 5: 5 Year Average Number of Volunteers Responding Per Call
5
4.5
4.5 4.2
3.8 . 3.9
q 3.7
3.5
3.5
3...........................
3 3... ......
2.5
2 2.3
2018 2019 2020 2021 2022
tDuty Response 3.8 3.9 4.5 4.2 3.7
Standby Response 3 3.3 3.5 3 2.3
t Duty Response Standby Response • • • • • • Linear (Duty Response) Linear (Standby Response)
Overall Response Statistics
The Overall Response statistics collected and presented in this section of the report
were pulled from our CriSys dispatching system. Because we have used this system for
several years, we were able pull 13 years' worth of long-term call data that is extremely
beneficial as it relates to the Volunteer Program analysis.
In 2022, 69.6% of CEFS's total call volume required Volunteer response. The total calls
attended by Volunteers (arrived on scene) has decreased to 47.6% from 2013 to 2022.
During this same period, the total calls where Volunteers responded saw a reduction to
52.6%. These numbers are significantly trending downward when you look at the ten
(10) year period as a whole.
With the 2022 cost of the Volunteer program of $1,153,215.53, the total cost per call
where Volunteers responded was $904.48 per call. This is inclusive of responses on
scene, trucks being cancelled and cleared enroute and standby instances.
You will also note in the below graph and data table that the call volumes for 2020, 2021
and 2022 appear to be quite lower than previous years. This is because of the COVID-
19 Pandemic which caused our department to adjust our Tiered response so that
Firefighters were not attending the normal high volume of medical calls to reduce
VMA: April 2023 Page 27 of 32
Clarington Emergency and Fire Services
Volunteer Suppression Model Analysis:
Clarington Emergency and Fire Services
exposure and limit the spread of COVID-19. In the first quarter of 2023 we have
adjusted our Tiered Response back to its original level and therefore we expect to see a
return in our increased call volumes going forward.
Total CEFS Calls Requiring Volunteer Response: 2010 to 2022
2847
584
2423
2300 1 / '*- 21
1894
1843 • •1$38 ' '
1800 i 7101
155
154� .1500
• •. • • 1744
1574
1554 1540 1652
••. 1596•.
1605
1764
127 .• •• • • • •
1275125 1254 1245 2161118121300 1181110
150
1030 891865 899 872 4
833 823 M7
800 — —
2010 2011 2012 2013 2014 2015 2016 2017 2018 2019 2020 2021 2022
Number of Calls Requiring Volunteer Response
Total Calls where Volunteers Responded (inclusive of trucks being cleared/cancelled)
Total Calls Attended (made it to location)
• • • • Linear (Number of Calls Requiring Volunteer Response)
• • • • Linear (Total Calls where Volunteers Responded (inclusive of trucks being cleared/cancelled))
- - - - - Linear (Total Calls Attended (made it to location))
As exhibited in the below table for total call volumes for CEFS, historical data was
collected over a 13 year period. As our dispatch system does not report the number of
Volunteers attending each call, the average number of Volunteers attending was
calculated using the five (5) year Duty Sheet data from the Response Actuals section of
this report. In addition to this, the Re -paged data was pulled from CriSys for the most
recent four (4) year period. It is important to note that the re -paged data represents
each instance that volunteers were re -paged at least once because of insufficient
volunteer apparatus response to a call.
VMA: April 2023 Page 28 of 32
Clarington Emergency and Fire Services
Volunteer Suppression Model Analysis:
Clarington Emergency and Fire Services
The re -paged data was quite complex and difficult to pull from CriSys and therefore only
the most recent four (4) years' worth of data was able to be obtained for this data
segment.
Total CEFS Call Volumes
Year
Total
CEFS
Calls
Number of
Calls
Requiring
Volunteer
Response
Total Calls where
Volunteers
Responded
(inclusive of
trucks
cleared/cancelled
enroute)
Total Calls
Attended
(arrival on
location)
Average
Number of
Volunteers
Attending per
call
Number of
Re -paged
Instances
2022
2535
1764
1275
874
3.8
181
2021
2233
1596
1245
891
3.9
121
2020
2665
1605
1254
872
4.6
154
2019
4317
1744
1210
867
3.8
182
2018
3981
1652
1185
823
4.2
2017
3726
1540
1150
833
2016
3789
1554
1216
899
2015
3727
1574
1181
865
2014
3613
2584
2189
1701
2013
3582
2847
2423
1838
2012
3447
1894
1557
1278
2011
3530
1843
1500
1192
2010
3369
1546
1255
1030
Threats and Mitigation Strategies for the Volunteer Program
If the Volunteer Suppression Model is going to be maintained successfully within CEFS
there are several threats and potential mitigation strategies that should be considered
as part of this analysis.
The Volunteer Program in CEFS is not the same as it used to be in the department as
increasing socioeconomical changes are affecting our program. We have experienced
challenges in the last few years related to daytime response levels for certain halls,
particularly Station 4. This is because most of our complement have primary
employment that they must be in attendance for throughout the daytime and therefore
cannot leave to respond to calls during this time. Historically, we have never had a
significant issue with this as a department because a large portion of our complement
was made up of shift workers such as GM employees, who had more flexibility with their
VMA: April 2023 Page 29 of 32
Clarington Emergency and Fire Services
PF
Volunteer Suppression Model Analysis:
Clarington Emergency and Fire Services
responses throughout the day based on their shift schedule. Employing a large portion
of shift workers is not the reality of our complement anymore and therefore we are
experiencing challenges with our daytime response levels.
Another threat apparent to the Volunteer Program is the updated legislation regarding
minimum certification standards. This legislation requires all departments to have
suppression staff certified to the Firefighter Level I and II levels by 2026. Minimum
certification is quite costly for a firefighter to complete. At the time of this report, the
department currently has 23 volunteers who will need to be certified under these new
standards. The department is currently looking at costing options to achieve and
maintain this legislated requirement, however this still presents quite a barrier to
employment as a Volunteer Firefighter based on the overall cost. Most people who
invest in completing the certification requirements are those who are looking to become
full-time fighters which does not help our retention issues.
Regardless of the department's decision on how to approach minimum certification in
the future, this is going to be an ongoing cost for CEFS. However, there is an
opportunity to leverage this new requirement for Volunteer Retention and Cost
mitigation. As a cost recovery and retention strategy, CEFS could utilize a training
investment agreement as a clause in our Volunteer employment contracts. This training
investment clause would require new recruits to commit to being a Volunteer in
Clarington for defined period of time (i.e. three (3) years), while also committing to
maintain a satisfactory response level, as determined by the department. If a Volunteer
resigns from their position or does not meet the required call attendance commitment,
they would be required to repay the department a pro -rated agreed -upon amount as
identified in their employment contract. This strategy would reduce the cost barrier of
new recruits trying to become Volunteers, while simultaneously increasing our Volunteer
response statistics and our overall cost recovery for training investment in our Volunteer
complement.
As outlined in the Retention section of this report, only 35% of our current complement
have staff that have been with us for ten (10) years or more and only an additional 12%
have been with us for five (5) years or more. These are our most experienced Volunteer
Firefighters and it is reasonable to estimate that we will lose these people within the
next few years. We need these people to mentor and develop or newer staff, especially
as our new recruit number grow and our retention rates diminish.
The amount of new recruits we need to hire has grown exponentially. As we continue to
see increased attrition rates, the cost of hiring and developing new recruits grows.
Combine this with the termination rates of new recruits that CEFS is experiencing, the
cost of the new recruit program is only going to grow and continue to be more costly to
maintain.
VMA: April 2023 Page 30 of 32
Clarington Emergency and Fire Services
PF
Volunteer Suppression Model Analysis:
Clarington Emergency and Fire Services
In addition to this, CEFS has observed a reduction in our staff retention rates both over
a ten (10) year and five (5) year period as our attrition rates continue to climb. A
significant portion of our attrition is due to Volunteers being recruited for full-time
positions in other Fire Departments. As external department recruitment is completely
out of our control, the only option CEFS has to remedy this threat is to develop creative
recruitment strategies to attract and retain individuals who are not interested in
becoming career firefighters. This could be quite challenging when considering our
applicant pool is limited to the geographic boundaries of the Municipality due to
response timeline requirements.
Another piece to consider when looking at CEFS's retention and attraction strategy is
the compensation model for our Volunteers. Clarington's Volunteer compensation
model is based on a point system for calls attended, training completed, Officer
administrative duties, etc. It would be extremely beneficial to do a full review of this
compensation model to determine if there are other options that could increase
Volunteer satisfaction and appropriate compensation levels based on surrounding
comparators.
Conclusion
CEFS is currently operating within a rapidly growing environment that has produced
several pressure points for the department including significant challenges for the
Volunteer Suppression Model. To determine the true efficacy of the Volunteer Program,
several factors were assessed through a data analytics perspective throughout this
report.
The Volunteer model in Clarington has seen a significant decline in its overall operation
due to a variety of factors. The Volunteer program is currently facing a variety of
challenges that are continuing to make attracting, recruiting and retaining Volunteers
more difficult resulting in a reduced complement capacity and increased carrying costs
to the program.
It is recommended that further data monitoring and measures for the Volunteer Program
continue in order to continuously assess the program efficacy. In addition to this, further
costing breakdowns relative to the Volunteer complement that expand into the asset
management areas of the department should be reviewed and quantified as part of the
overall program costs.
Another factor that this analysis did not touch on was an evaluation on the engagement
and job satisfaction levels of the Volunteer complement. It would be beneficial to solicit
feedback from Volunteers to gauge their level of engagement with their positions and
how they view the culture of the department.
VMA: April 2023 Page 31 of 32
Clarington Emergency and Fire Services
A
Volunteer Suppression Model Analysis:
Clarington Emergency and Fire Services
In addition to this, a compensation model review would be extremely beneficial in order
to determine comparator pay levels and pay systems that may improve the quality of
Volunteer retention and responses.
Moving forward, with our diminishing retention rates, the new minimum certification
standards, challenges with maintaining our daytime response levels due to
socioeconomic factors, and Clarington's rapid growth, there are numerous threats
pressuring the Volunteer Program that will need to be fully considered and addressed to
maintain a successful Volunteer Suppression Model in Clarington.
VMA: April 2023 Page 32 of 32
Clarington Emergency and Fire Services
Appendix B: Clarington Fire Master Plan - 2021 Pomax [pages 28-59]
Municipality of Clarington
A Fire Master Plan for Clarington
Emergency and Fire Services
vg��
POMAX
C O N S U L T I N G
November 2021
Clarington Emergency and Fire Services
Fire Master Plan
Response Percentiles by Station 2020
0:12:58
0:11:31
0:10:05
0:08:38
0:07:12
0:05:46
0:04:19
0:02:53
0:01:26
0:00:00
0:11:31
0:10:05
0:08:38
0:07:12
0:05:46
0:04:19
0:02:53
0:01:26
0:00:00
90th percentile by station
All stations Station 1
,I
Station 2
Station 3 Station 4
■ Call time ■ Turnout ■ Response
75th percentile by station
o„
oil
oil
oil
ME
All stations
Station 1
Station 2
Station 3
Station 4
■ Call time ■ Turnout ■ Response
POMAX
III
Station 5
oil
Station 5
Page 128
Clarington Emergency and Fire Services
Fire Master Plan
Station 1 Historic Information
Station 1 : Number of calls by year
2500
2000
1500
1000
500
0
2015 2016 2017 2018 2019 2020
Station 1 : Number of calls by month
250
200
150
100
50
0
op, Q& Qet
oetc e�e�
■ Station 1
■ 2015
■ 2016
■ 2017
■ 2018
■ 2019
■ 2020
POMAX
Page 129
Clarington Emergency and Fire Services
Fire Master Plan
500
450
400
350
300
250
200
150
100
50
0
140
120
100
11
Sunday
Station 1 : Number of calls by day
Monday Tuesday Wednesday
Thursday
Friday
Station 1 : Number of calls by hour
Saturday
80
60
40
20
■ 2015
■ 2016
■ 2017
■ 2018
■ 2019
■ 2020
■ 2015
■ 2016
■ 2017
'2018
■ 2019
■ 2020
POMAX
Page 130
Clarington Emergency and Fire Services
Fire Master Plan
Station 1 : Number of accident calls by year
200
150
100
50
0 M
Accident:Pedestrian Struck
50
45
40
35
30
25
20
15
10 ��.��■
0
5•
Pat�S Path .o�����d
5
Accident: Rail: Derailment Accident:Rail:Pedestrian/
Spill/No Spill Motor Vehicle
Accident:Vehicle
Station 1 : Number of alarm calls by year
III�I,
I
II
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■ 2016
■ 2017
■ 2018
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■ 2015
■ 2016
■ 2017
■ 2018
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■ 2020
POMAX
Page 131
Clarington Emergency and Fire Services
Fire Master Plan
Station 1 : Number of non structural fires by year
100
80
60
40
20
--■■ _■ ��.1��
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Station 1 : Number of medical calls by year
1400
1200
1000
800
600
400
200
0 —
Medical:Assist
1
Medical: Emergency
Medical:PAD Alarm
■ 2015
■ 2016
■ 2017
■ 2018
■ 2019
■ 2020
■ 2015
■ 2016
■ 2017
■ 2018
■ 2019
■ 2020
POMAX
Page 132
Clarington Emergency and Fire Services
Fire Master Plan
Station 1 : Number of public hazard calls by year
120
100
80
60
40
20
0 ■■-mo■
got' ta'
Cre Leo atia
t
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Station 1 : Number of rescue calls by year
11 1
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1 , 1
°�oJ� Q'e�Goe
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5�
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■ 2015
■ 2016
■ 2017
■ 2018
■ 2019
■ 2020
■ 2015
■ 2016
■ 2017
■ 2018
■ 2019
■ 2020
POMAX
Page 133
Clarington Emergency and Fire Services
Fire Master Plan
60
50
40
30
20
10
0
911 Unknown
Station 1 : Number of other calls by year
Automobile Lockout Incident Type
Other Other Response:M utual
Response:Assistance to Aid
other agencies/Public
Service
Station 1 : Number of structure fire calls by year
35
30
25
20
15
10 ■
5 I
11.d 1 III 1I 111
■ 2015
■ 2016
■ 2017
■ 2018
■ 2019
■ 2020
■ 2015
■ 2016
■ 2017
■ 2018
■ 2019
■ 2020
POMAX
Page 134
Clarington Emergency and Fire Services
Fire Master Plan
Station 2 Historic Information
900
800
700
600
500
400
300
200
100
0
Station 2 : Number of calls by year
2015 2016 2017 2018 2019 2020
Station 2 : Number of calls by month
90
80
70
60
50
40
30
20
10
0
F
■ 2015
■ 2016
■ 2017
2018
■ 2019
■ 2020
P �eQ�e p� ore eye
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POMAX
Page 135
Clarington Emergency and Fire Services ..
Fire Master Plan POMAX
Station 2 : Number of calls by day
140
120
100
■ 2015
■ 2016
80
■ 2017
60 ■ 2018
40 ■ 2019
■ 2020
20
0
Sunday Monday Tuesday Wednesday Thursday Friday Saturday
Station 2 : Number of calls by hour
70
60
02017
02019
20
02020
10
0 ..... ...... ..... ..... 11111 gill 111.1
Page 136
Clarington Emergency and Fire Services
Fire Master Plan
Station 2 : Number of accident calls by year
140
120
100
80
60
40
20
0 — �a
Accident Accident: Pedestrian Struck Accident:Rail:Pedestrian/ Accident:Vehicle
Motor Vehicle
Station 2 : Number of alarm calls by year
30
25
20
15
10
5
III
I
1■■
I1
0
5
■ M ■ = ■ M
P�
■ 2015
■ 2016
■ 2017
2018
■ 2019
■ 2020
■ 2015
■ 2016
■ 2017
■ 2018
■ 2019
■ 2020
POMAX
Page 137
Clarington Emergency and Fire Services
Fire Master Plan
Station 2 : Number of non structural fires by year
25
20
15
10
0
\Oy`�C�
450
400
350
300
250
200
150
100
50
0
\Oy\OC\ �c+Q\14
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tea
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Station 2 : Number of medical calls by year
Medical:Assist
Medical: Emergency
■ 2015
■ 2016
■ 2017
■ 2018
■ 2019
■ 2020
■ 2015
■ 2016
■ 2017
■ 2018
■ 2019
■ 2020
POMAX
Page 138
Clarington Emergency and Fire Services
Fire Master Plan
40
35
30
25
20
15
10
5
0
ie
0
J�Or QJ
Q
2.5
2
1.5
1
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0
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Station 2 : Number of public hazard calls by year
111 11 111111 I■1111
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Station 2 : Number of rescue calls by year
GJe. oQe
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■ 2015
■ 2016
■ 2017
■ 2018
■ 2019
■ 2020
■ 2015
■ 2017
■ 2018
■ 2019
■ 2020
POMAX
Page 139
Clarington Emergency and Fire Services
Fire Master Plan
Station 2 : Number of other calls by year
30
25
20
15
10
5
0
1
911 Unknown Automobile Lockout Incident Type Other Response:Assistance to
other agencies/Public Service
Station 2 : Number of structural fire calls by year
25
20
15
10
5
0
�■
II
■ ■ ■
■ 2015
■ 2016
■ 2017
■ 2018
■ 2019
■ 2020
■ 2015
■ 2016
■ 2017
■ 2018
■ 2019
n� ■ 2020
POMAX
Page 140
Clarington Emergency and Fire Services
Fire Master Plan
Station 3 Historic Information
250
200
150
100
50
0
2015
Station 3 : Number of calls by year
2016 2017 2018 2019 2020
Station 3 : Number of calls by month
30
25
20
15
10
5
0
e�t�atJ
Q
■ 2015
■ 2016
■ 2017
■ 2018
■ 2019
■ 2020
POMAX
Page 141
Clarington Emergency and Fire Services
Fire Master Plan
Station 3 : Number of calls by day
40
35
30
25
20
15
10
5
0 —
Sunday Monday Tuesday
Wednesday Thursday Friday
Station 3 : Number of calls by hour
1111
Saturday
18
16
14
12
10
■ 2015
■ 2016
■ 2017
■ 2018
■ 2019
■ 2020
■ 2015
■ 2016
■ 2017
■ 2018
■ 2019
■ 2020
POMAX
Page 142
Clarington Emergency and Fire Services
Fire Master Plan
10
9
8
7
6
5
4
3
2
1
0
50
45
40
35
30
25
20
15
10
5
0
Station 3 : Number of alarm calls by year
•
ye
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ae
5`
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gat
P
Station 3 : Number of accident calls by year
AccidentNehicle
11
■ 2015
■ 2016
■ 2017
■ 2018
■ 2019
■ 2020
■ 2015
■ 2016
■ 2017
■ 2018
■ 2019
■ 2020
POMAX
Page 143
Clarington Emergency and Fire Services
Fire Master Plan
Station 3 : Number of non structural fire calls by year
12
10
8
6
■ 2015
4
■ 2016
■ 2017
0
02018
■ 2019
■ 2020
+Q\o�+�\oQ\oy���+Q\oy.��
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120
100
80
60
40
20
0
Station 3 : Number of medical calls by year
Medical:Assist
Medical: Emergency
■ 2015
■ 2016
■ 2017
■ 2018
■ 2019
■ 2020
POMAX
Page 144
Clarington Emergency and Fire Services
Fire Master Plan
Station 3 : Number of public hazard calls by year
8
7
6
5
4
3
1 I 1 1 1I 1 I' I11 1 1 I' 1
0
c.� ta' Q Kati ataa° ia.
O tia ° ati at tia
Q Q � JP0 Q�
Q
Station 3 : Number of other calls by year
14
12
10
8
6
4
2
0
911 Unknown
Other Response:Assistance to other agencies/Public
Service
■ 2015
■ 2016
■ 2017
■ 2018
■ 2019
■ 2020
■ 2015
■ 2016
■ 2017
■ 2018
■ 2019
■ 2020
POMAX
Page 145
Clarington Emergency and Fire Services
Fire Master Plan
Station 3 : Number of structural fire calls by year
9
8
7
6
5
4
3
2
POMAX
■ 2015
■ 2016
■ 2017
■ 2018
■ 2019
■ 2020
Page 146
Clarington Emergency and Fire Services
Fire Master Plan
Station 4 Historic Information
1200
1000
800
600
400
200
0
2015
120
100
80
60
40
20
0
Station 4 : Number of calls by year
2016 2017 2018 2019 2020
Station 4: Number of calls by month
■ 2015
■ 2016
■ 2017
■ 2018
■ 2019
■ 2020
,J�J �y� et et et et
� O
POMAX
Page 147
Clarington Emergency and Fire Services
Fire Master Plan
Station 4 : Number of calls by day
200
180
160
140
120
100
80
60
40
20
0
Sunday Monday Tuesday Wednesday
Thursday
Station 4 : Number of calls by hour
80
70
60
50
40
30
�
�I
20
II
10
�IkIIIiIIIV���IIiI��I�III
I
II
1111
Friday
Saturday
■ 2015
■ 2016
■ 2017
■ 2018
■ 2019
■ 2020
■ 2015
■ 2016
■ 2017
■ 2018
■ 2019
■ 2020
POMAX
Page 148
Clarington Emergency and Fire Services
Fire Master Plan
Station 4 : Number of accident calls by year
120
100
■ 2015
80
■ 2016
60
■ 2017
■ 2018
40
■ 2019
■ 2020
20
0
Accident: Pedestrian Struck
40
35
30
25
20
15
10
5
I
�■
0
5•
may.
�a�tc
P
moo`'
Accident:Vehicle
Station 4 : Number of alarm calls by year
-- —■— ■
r
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l
1
■ 2015
1
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■ 2018
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■ 2019
a
;
■ 2020
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a
POMAX
Page 149
Clarington Emergency and Fire Services
Fire Master Plan
Station 4 : Number of non structural fire calls by year
50
45
40
35
30
25
20
15
10
5
\oy\o�
\oy`o�
\oy\o
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F`te
F`te
tea
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Station 4 : Number of medical calls by year
700
600
500
400
300
200
100
0
Medical:Assist
Medical: Emergency
■ 2015
■ 2016
■ 2017
■ 2018
■ 2019
■ 2020
■ 2015
■ 2016
■ 2017
■ 2018
■ 2019
■ 2020
POMAX
Page 150
Clarington Emergency and Fire Services
Fire Master Plan
Station 4 : Number of public hazard calls by year
60
50
40
30
20
10 .��■.■ ■■�_■_ 11 II ■■■ ■- -- - ■�■1�■
0
`Q\o
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5�
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Station 4 : Number of rescue call by year
`tea °,�z Jte
tee.
Q,e
51;
■
■ 2015
■ 2016
■ 2017
■ 2018
■ 2019
■ 2020
■ 2015
■ 2016
■ 2017
■ 2018
■ 2019
■ 2020
POMAX
Page 151
Clarington Emergency and Fire Services
Fire Master Plan
40
35
30
25
20
15
10
5
0
IIIIII
911 Unknown
30
25
20
15
10
5
0
Station 4 : Number of other calls by year
Automobile Lockout Other Response:Assistance to Other Response: MutuaI Aid
other agencies/Public Service
Station 4 : Number of structural fires by year
■IN■__ ■ ■_
■ ■MM■ =
■ 2015
■ 2016
■ 2017
■ 2018
■ 2019
■ 2020
■ 2015
■ 2016
■ 2017
■ 2018
■ 2019
■ 2020
POMAX
Page 152
Clarington Emergency and Fire Services
Fire Master Plan
Station 5 Historic Information
110
105
100
95
90
85
80
2015
16
14
12
10
8
6
4
2 I I
0
F
Station 5 : Number of calls by year
2016 2017 2018 2019 2020
Station 5: Number of calls by month
III
■ 2015
■ 2016
■ 2017
■ 2018
■ 2019
. ■ 2020
P he,�we p� ore eye
� O
POMAX
Page 153
Clarington Emergency and Fire Services
Fire Master Plan
Station 5: Number of calls by day
25
0 = = = = = = = = - - = - - W-MLIE M - = = - - = = = = - - = = = - w - - = - - = =
Sunday Monday Tuesday Wednesday Thursday Friday Saturday
Station 5 : Number of calls by hour
12
02015
02017
02019
02020
10
02015
02016
02018
02020
POMAX
Page 154
Clarington Emergency and Fire Services
Fire Master Plan
35
30
25
20
15
10
5
0
4
3
2
1
0
Station 5 : Number of accident calls by year
Accident:Pedestrian Struck
■ ■
Accident:Vehicle
Station 5 : Number of alarm calls by year
1 11
■ 2015
■ 2016
■ 2017
■ 2018
■ 2019
■ 2020
■ 2015
■ 2016
■ 2017
■ 2018
■ 2019
■ 2020
POMAX
Page 155
Clarington Emergency and Fire Services
Fire Master Plan
Station 5 : Number of structural fire calls by year
7
6
5
4
3
2
1
0
■ 2015
■ 2016
■ 2017
■ 2018
■ 2019
■ 2020
POMAX
Page 156
Clarington Emergency and Fire Services
Fire Master Plan
Station 5 : Number of non structural calls by year
12
10
6
4
2
0 11
11
■ 2015
■ 2016
■ 2017
■ 2018
■ 2019
■ 2020
POMAX
Page 157
Clarington Emergency and Fire Services
Fire Master Plan
60
50
40
30
20
10
0
Station 5 : Number of medical calls by year
Medical:Assist
Medical: Emergency
Station 5 : Number of public hazard calls by year
8
7
6
5
4
3
0
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■ 2015
■ 2016
■ 2017
■ 2018
■ 2019
■ 2020
■ 2015
■ 2016
■ 2017
■ 2018
■ 2019
■ 2020
POMAX
Page 158
Clarington Emergency and Fire Services
Fire Master Plan
5
4
3
2
1
0
911 Unknown
Station 5 : Number of other calls by year
Other Response:Assistance to other Other Response:Mutual Aid
agencies/Public Service
■ 2015
■ 2016
■ 2017
■ 2018
■ 2019
■ 2020
POMAX
Page 159