HomeMy WebLinkAboutESD-018-12 Clarbgton
EMERGENCY AND FIRE SERVICES
Meeting: GENERAL PURPOSE AND ADMINISTRATION COMMITTEE
Date: November 26, 2012 Resolution#: 04,57J-1, By-law#:
Report#: ESD-018-12 File#:
Subject: Operational Planning: An Official Guide to Matching Resource Deployment and
Risk
RECOMMENDATIONS:
It is respectfully recommended that the General Purpose and Administration Committee
recommend to Council the following:
1. THAT Report ESD-018-12 be received for information.
Submitted by: Reviewed by: m`
Gord Weir Franklin Wu,
Director of Emergency Chief Administrative Officer
Services/Fire Chief
GW/mb
CORPORATION OF THE MUNICIPALITY OF CLARINGTON
40 TEMPERANCE STREET, BOWMANVILLE, ONTARIO L1C 3A6 T 905-623-3379
REPORT NO.: ESD-018-12 PAGE 2
Index
1.0 Background 3
1.1 Operational Planning: An Official Guide to Matching Resource
Deployment and Risk 3
1.2 Emergency and Fire Services Governing By-Law 3
1.3 Applicable Legislation 4
1.4 Understanding and Using the OFM Fire Progression Curve 6
1.5 Fire Growth Rates 7
2.0 Comments 7
2.1 Response Statistics 8
2.2 Building Stock and Occupancies 9
2.3 Fire Statistics 12
2.4 Fire Station Locations 20
2.5 Fire Suppression Apparatus 21
2.6 Operational Staff 22
2.7 Full-time Firefighter Platoon Staffing 23
2.8 Volunteer Firefighter Compliment 24
2.9 Dispatch Rules — Fire 25
2.10 Determining a Risk Level for Building Occupancies 26
2.11 The Critical Task Matrix 32
2.12 Applying the Critical Task Matrix to Fires in the Study Period 33
3.0 Conclusion 35
4.0 Recommendations 35
5.0 Concurrence 36
Appendix A—The Five Step Process including Forms 37
Appendix B — Legislation Affecting the Ontario Fire Service 45
Appendix C — Building Stock 60
REPORT NO.: ESD-018-12 PAGE 3
1.0 BACKGROUND
1.1 Operational Planning: An Official Guide to Matching Resource Deployment
and Risk
On November 10, 2010 the Office of the Ontario Fire Marshal (OFM) issued Public
Fire Service Guidelines (PFSG) 04-08-10, Operational Planning: An Official Guide
to Matching Resource Deployment and Risk to Ontario's Fire Services to help fire
departments gauge resource requirements for suppression for a range of risk types
within their municipality.
Exercising the Operational Planning document is intended to support municipalities
in meeting their obligations as set out in Section 2 of the Fire Protection and
Prevention Act, 1997 (FPPA). It also provides the OFM with a transparent means
of meeting its legislative responsibilities to monitor and review municipal fire
protection services and to advise fire departments and municipal councils as
needed.
Based on critical tasks from the incident management system, the Operational
Planning document is a tool for municipal decision-makers to analyze their
resource needs for the levels of fire risk in their communities. It is a five-step
process that offers a systematic and logical process of assessment, planning and
implementation, provides for collecting building stock and response data, reviewing
incidents, identifying fire suppression gaps, and developing options and
recommendations for Council consideration.
See Appendix A for the Five Step Process including Forms.
As a consequence of this new publication, PSFG 04-08-12 Staffing — Single Family
Dwellings, and PSFG 04-08A-03 Optimizing Rural Emergency Response were
rescinded.
1.2 Emergency and Fire Services Governing By-Law
The Emergency and Fire Services Governing By-Law, By-Law Number#2007-134
states the following:
• Fire suppression services shall be delivered in both an offensive and
defensive mode and shall include search and rescue operations, forcible
entry, ventilation, protecting exposures, salvage and overhaul as
appropriate;
REPORT NO.: ESD-018-12 PAGE 4
• The Fire Department may request other municipalities to provide mutual aid
and other qualified persons to assist in extinguishing fires;
• Inspections arising from complaint, request, retrofit, or self initiated and fire
investigations shall be provided in accordance with the FPPA and policies of
the Fire Prevention Division;
• New construction inspections and plan reviews of buildings under
construction in matters respective of fire protection systems within buildings,
as well as other fire safety concerns i.e. fire routes, shall be conducted in
accordance with the applicable by-law and operating procedures;
• Distribution of fire and life safety information and public education programs
shall be administered in accordance with the FPPA and policies of the
department's Fire Prevention and Public Safety Division;
• A residential Smoke Alarm Awareness Program shall be ongoing; and
• Shall maintain at least one public Fire and Life Safety Educator certified to
the Ontario Fire Service Standard.
1.3 Applicable Legislation
The provision of fire protection services in a municipality is governed by both
provincial and federal legislation. The Fire Protection and Prevention Act, 1997 is
the primary governing legislation for the provision of fire protection services in
Ontario. Other legislation affects the delivery of fire protection, and a detailed
listing is provided as Appendix B to this report.
The Fire Protection and Prevention Act, 1997 S.O. 1997, Chapter 4
The Fire Protection and Prevention Act, 1997 (FPPA) is provincial legislation that
governs fire protection in Ontario. It provides definitions, specifies municipal
responsibilities regarding the delivery of fire protection services and describes the
powers and duties of the Fire Marshal (excerpts below)
PART I: DEFINITIONS
Definitions
1.(1) In this Act, "fire protection services" includes fire suppression, fire prevention,
fire safety education, communication, training of persons involved in the provision
of fire protection services, rescue and emergency services and the delivery of all
those services.
REPORT NO.: ESD-018-12 PAGE 5
PART II: RESPONSIBILITY FOR FIRE PROTECTION SERVICES
Municipal responsibilities
2.(1) Every municipality shall
(a) establish a program in the municipality which must include public education
with respect to fire safety and certain components of fire prevention, and
(b) provide such other fire protection services as it determines may be necessary
in accordance with its needs and circumstances.
Review of municipal fire services
(7) The Fire Marshal may monitor and review the fire protection services provided
by municipalities to ensure that municipalities have met their responsibilities
under this section and, if the Fire Marshal is of the opinion that, as a result of a
municipality failing to comply with its responsibilities under Subsection (1), a
serious threat to public safety exists in the municipality, he or she may make
recommendations to the council of the municipality with respect to possible
measures the municipality may take to remedy or reduce the threat to public
safety.
Municipalities may establish fire departments
5.(0.1) The council of a municipality may establish, maintain and operate a fire
department for all or any part of the municipality.
5.(1) A fire department shall provide fire suppression services and may provide
other fire protection services in a municipality, group of municipalities or in
territory without municipal organization.
PART II: FIRE MARSHAL
Powers of Fire Marshal
9.(1) the Fire Marshal has the power,
(a) to monitor, review and advise municipalities respecting the provision of fire
protection services and to make recommendations to municipal councils for
improving the efficiency and effectiveness of those services
(d) to issue guidelines to municipalities respecting fire protection services and
related matters
Duties of Fire Marshal
9.(2) It is the duty of the Fire Marshal,
(b) to advise municipalities in the interpretation and enforcement of this Act and
the regulations
(d) to develop training programs and evaluation systems for persons involved in
REPORT NO.: ESD-018-12 PAGE 6
the provision of fire protection services and to provide programs to improve
practices relating to fire protection services.
1.4 Understanding and Using the OFM Fire Progression Curve
The Office of the Fire Marshal (OFM) recognizes an organized, rapid, aggressive
and offensive approach to fire suppression as the most effective strategy to
mitigate a fire, thereby potentially reducing the loss of life and property. This
strategy is based upon the OFM Fire Progression Curve, Chart #1. As depicted a
fire grows exponentially—time versus fire growth.
Chart #1
UJ
v
D O
rn
w
w o
F- '
X
C
0
4
0
Z
4 TIME VARIES+*TIME CONTROLLABLE BY FIRE DEPARTMENT*
Detection Report Dispatch Preparation Travel Time Set-up Time Intervention
of Fire of Alarm Time Time
Chart #1 was produced by the OFM for the Operational Planning document.
Notes:
• The fire progression curve is subject to variation due to a number of
factors such as type of material and volume of material.
• The various factors, from the time the fire begins until intervention takes
place, are all subject to variation.
• Preparation time for full-time firefighters means the time to dress and
depart the station.
• Preparation time for volunteer firefighters includes the time to respond to
the station as well as to dress and depart the station.
REPORT NO.: ESD-018-12 PAGE 7
1.5 Fire Growth Rates
Research by the OFM and the National Research Council of Canada recognizes
that a fire in a non-sprinklered residential occupancy may extend from the room of
origin in approximately 10 minutes or less.
OFM test burns have demonstrated that fire can extend beyond the room of origin
in as little as three minutes. Slow, medium and fast fire growth rates are defined by
the Society of Fire Protection Engineers according to the time it takes for a fire to
reach I megawatt (MW). Refer to Chart#2
Chart#2
TIME TO REACH 1 MW AND 2MW FIRE GROWTH RATES
IN THE ABSENCE OF SUPPRESION
FIRE GROWTH TIME TO REACH TIME TO REACH
RATE 1 M 2MW
Slow 10 minutes 14.13 minutes
Medium 5 minutes 7.06 minutes
Fast 2.5 minutes 3.53 minutes
Chart #2 was produced by the OFM for the Operational Planning document.
1 MW fire can be thought of as a typical upholstered chair burning at its peak.
2MW fire can be thought of as a typical large upholstered sofa burning at its peak.
2.0 COMMENTS
The purpose of this report is to provide Council with an evaluation of the
capabilities of the fire department based on a community risk assessment and to
assist them in meeting their responsibilities as per the Fire Protection and
Prevention Act, 1997 (FPPA) and other applicable legislations. The evaluation
includes the identification of gaps that impact on the capability of the fire
department to deliver fire suppression services and recommendations to close the
gaps to assist Council in meeting its responsibilities as per the Fire Protection and
Prevention Act, 1997 (FPPA) and other applicable legislations.
REPORT NO.: ESD-018-12 PAGE 8
2.1 Response Statistics
In 2009, the OFM redefined the statistics collected from Fire Services across the
province. One such statistic is the arrival time of the first fire truck on scene at an
incident. Arrival time is the accumulated times of Dispatch Time, Preparation
Time, and Travel Time. OFM statistics in Chart #3 illustrate the average response
time for all fire reports submitted to the OFM.
Chart#3
Year Average
2009 6.7
Clarington
2010 6.5
2009 4.9
Oshawa Fire Services
2010 4.9
2009 5.2
Whitby Fire Services
2010 5.2
2009 4.3
Ajax Fire Services
2010 4.3
2009 4.6
Pickering Fire Services
2010 5.5
2009 8.9
Scugog Fire Services
2010 10.5
Kawartha Lakes Fire 2009 9.9
Services 2010 9.1
2009 5.6
Port Hope Fire Services
2010 6.7
Full-time Fire Services, 2009 4.6
Provincially 2010 4.7
Composite Fire Services, 2009 7.3
Provincially 2010 7.5
Volunteer Fire Services, 2009 9.7
Provincially 2010 10.4
This data illustrates that the average response time for Clarington is less than the
average composite or volunteer fire services and greater than the average full-time
fire services.
REPORT NO.: ESD-018-12 PAGE 9
2.2 Building Stock and Occupancies
The Ontario Building Code (OBC) defines occupancies as the use or intended use
of a building or part thereof for shelter or support of persons, animals or property.
Chart #4 provides a definition of OBC Major Occupancy Classifications and
provides a break out of Clarington's building stock.
Chart #4
Group Division Description of Major Occupancy Number Of Units
Assembly occupancies intended
A 1 for the production and viewing of 1
the performing arts
A 2 Assembly occupancies not 229
elsewhere classified in Group A
A 3 Assembly occupancies of the 8
arena type
Assembly occupancies in which
A 4 occupants are gathered in the 1
open air
B 1 Detention occupancies 0
B 2 Care and treatment occupancies 8
B 3 Care occupancies 8
C --- Residential occupancies 28,758
D -- Business and personal services 172
occupancies
E --- Mercantile Occupancies 198
F 1 High hazard industrial 1
occupancies
F 2 Medium hazard industrial 268
occupancies
F 3 Low hazard industrial 36
occupancies
29;688
Clarington's building stock consists of approximately 29,688 units and an additional
2,135 structures/properties not classified by the OBC.
REPORT NO.: ESD-018-12 PAGE 10
Group B Occupancies require an annual inspection and total 8. Approximately 192
inspection hours are required to complete this task.
Child Care Facilities, Group A, Division 2 require annual inspection. Presently
there are 34 such facilities in Clarington requiring approximately 204 inspection
hours to complete this task.
Hotels and Motels, Group C, require a bi-annually inspection. Presently there are
6 such occupancies requiring approximately 42 inspection hours to complete this
task.
For the purpose of this report, OBC occupancies known as Group A, Group B,
Group C, Group D, Group E and Group F, will be referred to as Classified
Buildings. Structures or buildings not classified by the OBC will be referred to as
Unclassified Buildings and buildings that fall under the National Farm Building
Code will be referred to as NFBC.
Chart #5 provides examples of Clarington's building stock. See Appendix C for a
complete listing of Clarington's building stock.
Chart #5
Type,of Major Number of Type of Major Number of
Risk Level Risk Level
Occupancy by OBC Occupancies Occupancy by OBC Occupancies
Group A, Division 1 Group A,Division 1
Motion Picture 1 Moderate
Theatres
Group A, Division 2 Group A,Division 2
Child Care Facilities 34 Moderate Museums 2 Low
Group A,Division 3 Group A,Division 3
Arenas 6 Moderate Indoor Swimming Pools 2 Low
Group A,Division 4 Group A Division 4
Amusement Park 1 Low
Group B, Division 2 Group B,Division 2
Homes for the Aged 4 Extreme Nursing Homes 3 Extreme
Group B, Division 3 Group B)Division 3
Residential Care
Facilities 8 Extreme
REPORT NO.: ESD-018-12 PAGE 11
Type of Major Number of Type of Major Number of
Risk Level Risk Level.
Occupancy by OBC Occupancies Occupancy by OBC Occupancies'
Group C Group C
Group Homes 11 Extreme Semi/Detached 936 Moderate
Residential
Group D Group D
Offices (General) 64 Low Converted homes to 42 Low
business
Group E Group E
Restaurants under 30 92 Low Big Box Stores 2 Moderate
Group E Group E
Stores 95 Low
GroupF, Division 1
Rubber Processing
1 Extreme
Plants
Group F,Division 2
Lumber yards 4 High Service Stations 23 High
Group F, Division 3
Power Plants 1 Moderate Water Treatment 3 Moderate
Sewage Stn
Chart #4 and 5 statistics were obtained through MPAC and Municipal records in
2011.
The following calculations were based on Appendix C building stock:
Two fire prevention inspectors have approximately 1,500 hours annually to perform
fire inspections.
Today's moderate risk occupancies (excluding residential) total 73 and require
approximately 438 hours to complete fire prevention inspections.
Today's high risk occupancies total 505 and require approximately 3,030 hours to
complete fire prevention inspections.
Today's extreme risk occupancies total 39 and require approximately 468 hours to
complete fire prevention inspections.
REPORT NO.: ESD-018-12 PAGE 12
In general, human resources required to complete annual and biannual inspections
are adequate. If the Municipality is to take a proactive approach to managing
extreme risks, working on high risks and keeping an eye on moderate risk
occupancies additional resources are required.
In addition to human resources, a business registry would be beneficial in verifying
occupancy use and when occupancy change occurs, ensure all codes and
standards are applied therefore improving the fire safety of the occupants and
potentially those of responding firefighters.
2.3 Fire Statistics
For all fire statistics in this report, the referred study period will be from
January 1, 2006 to December 31, 2010, unless otherwise stated.
Dollar loss fires totaled 473 fires: 220 originated in structures, 65 originated as
outdoor fires, and 188 originated as vehicle fires.
Chart #6 illustrates the volume of structure fires, outdoor fires and vehicle fires.
Chart#6
60
50
40 43
- 41
38 36
30
J V
20
10
0
2006 2007 2008 2009 2010
El STRUCTURE E OUTDOOR ❑ VEHICLE
With the exception of 2006, structure fires are the most frequent dollar loss fire in
Clarington.
REPORT NO.: ESD-018-12 PAGE 13
Chart#6 statistics were obtained from the OFM Statistics Branch.
Chart #7 illustrates the fire dollar loss.
Chart #7
2010
� r
2009
2008 4
MAIN 011111-1108MMU,
2007 y >
2006 WPM
0 2,000,000 4,000,000 6,000,000 8,000,000 10,000,000 12,000,000
In 2006, there were three large dollar loss fire, one that involved watercraft, an
attached dwelling with business fire and a residential fire.
In 2007, there were three large dollar loss fires that involved a barn and a million
dollar residential fire.
In 2008, there were two large dollar loss fires that involved a restaurant and the
downtown fire in Bowmanville,
In 2009, there were three large dollar loss fires, two residential fires and a fire at a
former school.
In 2010, there were a five large dollar loss fires, a barn, three residential fires and
a quarry fire.
Chart #7 statistics were obtained from the OFM Statistics Branch.
REPORT NO.: ESD-018-12 PAGE 14
Chart #8 breaks out the dollar loss using the OBC classifications and includes
Unclassified Buildings and buildings that fall under the National Farm Building.
Chart #8
57.4%
- o
6.8/0
0
0.03 0
16.8% 1.2% 16.8%
0.8%
0.3%
D Group A EGroupB ❑ Group C ❑ Group D ® Group E D Group F MNotClassffled ❑ NFBC
16.8% 0.03% 57.4% 6.8% 16.8% 1.2% 0.03% 0.8%
(4.8%) (1%) (60%) (2.8%) (4.6%) (18.2%) (1%) (7.8%)
Residential fires account for 57.4% of total dollar loss compared to the Provincial
statistic of 60%.
Provincial percentages are in brackets.
REPORT NO.: ESD-018-12 PAGE 15
Chart #9 statistics were obtained from the OFM Statistics Branch.
Chart #9 illustrates the percentage of fires in Clarington using the OBC Major
Occupancy Classifications and includes buildings Not Classified and NFBC.
Chart #9
6.8% 4.1% 9.1% o
0.9/0
4.1%
5.5%
2.3%
67.1%
El Group A E Group B ❑ Group C ❑ Group D
9.1% 0.9% 67.1% 2.3%
(5.4%) (1.2%) (71.4%) (3%)
Group E ❑ Group F E Not Classified ❑ NFBC
5.5% 4.1% 6.8% 4.1%
(4%) (7.6%) (4.8%) (2.8%)
Chart #9 suggests that in Clarington, fires occur in the areas listed on average
similar to that of the Provincial average.
Chart #9 statistics were obtained from the OFM Statistics Branch.
Provincial percentages are in brackets.
REPORT NO.: ESD-018-12 PAGE 16
Fire responses by month were tracked and are illustrated in Chart #10.
Chart#10
27.0%
3.8%
4.9%
2.3% 5.7%
3.9%
7.4%
5.4% 25.9%
4.6%
4.7% 4.4%
January E February ❑ March ❑April N May 0 June
27% 3.8% 5.7% 25.9% 4.4% 4.7%
(8.2%) (7.4) (8.6%) (9.2%) (9.8%) (8.2%)
IN July ❑ August 0 September IM October ❑ November 0 December
4.6% 5.4% 7.4% 3.9% 2.3% 4.9%
(8.6%) (8.4%) (7.4%) (7.8%) (7.6%) (8%)
Close to 53% of the fires occurred in January and April.
Chart #10 statistics were obtained from Department records and the OFM
Statistics Branch.
Provincial percentages are in brackets.
REPORT NO.: ESD-018-12 PAGE 17
Fire responses by day of the week were tracked and are illustrated in Chart #11.
Chart #11
12.7%
14.3% ,` 15.7%
17.3% 14.3%
16.5% 9.00/
Monday E Tuesday ❑Wednesday ❑Thursday ® Friday ❑ Saturday E Sunday
12.7% 15.7% 14.3% 9% 16.5% 17.3% 14.3%
(14%) (13.8%) (14%) (13.8%) (14.2%) (15%) (14.8%)
Although no one day stands out from the rest, more fires occurred on Saturdays
and fewer fires on Thursdays.
Chart #11 statistics were obtained from Department records and the OFM
Statistics Branch.
Provincial percentages are in brackets.
REPORT NO.: ESD-018-12 PAGE 18
Fire responses by time of day were tracked and are illustrated in Chart #12.
Chart#12
20.6%
8.4% 9.2%
7.3%
18.5%
11.8%
11.8% 12.4%
Midnight to 3am M 3am to 6am ❑ 6am to 9am ❑ 9am to Noon
20.6% 9.2% 7.3% 11.8%
(14.4%) (7.6%) (8.8%) (12.4%)
Noon to 3 pm 0 3pm to 6pm M 6pm to 9pm ❑ 9pm to Midnight
12.4% 11.8% 18.5% 8.4%
(15.2%) (17.8%) (15.6) (8.2)
47.5% of fires occur during the nine hour period between 6pm and 3am.
Chart#12 statistics were obtained from Department records and the OFM
Statistics Branch.
With respect to the by month, by day and by time of day statistics, further research
and analysis is required to determine why these statistics are what they are.
Provincial percentages are in brackets.
REPORT NO.: ESD-018-12 PAGE 19
Chart #13 illustrates the civilian fire injuries and civilian fire fatalities over the study
period.
Chart #13 2006 2007 2008 2009 2010
Civilian Fire 0 0 2 4 6
Injuries
Civilian Fire 1 0 0 0 0
Fatalities
All injuries and the one fatality occurred in Group C Residential occupancies.
Chart #13 statistics were obtained from the OFM Statistics Branch.
Over the study period, Provincial statistics show 88.2% of all civilian structure fire
injuries and 96.6% of all civilian fire fatalities occur in Group C Residential
occupancies.
REPORT NO.: ESD-018-12 PAGE 20
2.4 Fire Station Locations
Emergency and Fire Services responds from five stations, one located in each of
the four large urban areas and another located at the intersection of Regional Rd
#57 and Concession 8.
• Station 1, 2430 Highway #2, Bowmanville
• Station 2, 247 King Avenue East, Newcastle
• Station 3, 5708 Main St., Orono
• Station 4, 2611 Trull's Rd., Courtice
• Station 5, 2354 Concession Rd. 8, Enniskillen
The fire station locations are illustrated on Map #1.
� 3
1
N
Map #1
REPORT NO.: ESD-018-12 PAGE 21
2.5 Fire Suppression Apparatus
Fire suppression apparatus are positioned throughout the five fire stations.
Chart #14 identifies the fire stations and apparatus staged within. The number in
brackets indicates how many firefighters can be transported on that vehicle.
Chart#14
Station 1 Station 2 Station 3 Station 4 Station 5
Bowmanville Newcastle Orono Courtice Enniskillen
Pumper 1 (5) Pumper 4 (5)
Pumper 11 (6) Pumper 2 (5) Pumper 3 (6) Pumper 44 (5) Pumper 5 (5)
Tanker 1 (2) Tanker 2 (3) Tanker 3 (3) Tanker 4 (2) Tanker 5 (3)
Aerial 1 (6) Aerial 2 (5)
Rescue 1 (5) Rescue 4 (4)
Utility 1 (5) Utility 3 (5)
An additional Pumper truck is due to be received in the 4th quarter of 2012.
REPORT NO.: ESD-018-12 PAGE 22
2.6 Operational Staff
Operational staff in the Department includes 125 volunteer firefighters, 59 full-time
staff throughout the various Divisions. Chart#15 identifies where the staff are
based.
Chart#15
Station 1 Station 2 Station 3 Station 4 Station 5
Bowmanville Newcastle Orono Courtice Enniskillen
Suppression Division
25 Volunteer 25 Volunteer 25 Volunteer 25 Volunteer 25 Volunteer
Firefighters Firefighters Firefighters Firefighters Firefighters
28 Full-time 20 Full-time
Firefighters Firefighters
Communications Division
4 Dispatchers
Fire Prevention & Public Education Division
1 Prevention
Officer
2 Prevention
Inspectors
1 Public Educator
Training and Professional Development Division
1 Senior Training
Officer
1 Training Officer
(vacant)
Maintenance Division
1 Maintenance
Technician
REPORT NO.: ESD-018-12 PAGE 23
2.7 Full-time Firefighter Platoon Staffing
Platoon staffing throughout the Fire Service is dependent on the needs and
circumstances of a Municipality. Clarington's neighboring Fire Services to the
west are staffed with full-time firefighters only. Fire Service neighbors to the
north and east are either Composite or Volunteer Fire Services. Chart #16
illustrates minimum platoon staffing of full-time firefighters and number of stations
staffed by respective Fire Services.
Chart #16
Type of Number of Minimum Number of
Fire Service Service Halls Platoon Staffed
Staffing Stations
Clarington Composite 5 6 2
Oshawa Full-time 5 34 5
Whitby Full-time 5 21 4
Ajax Full-time 3 17 3
Pickering Full-time 4 17 4
Scugog Composite 2 2 1
Kawartha Composite 21 4 1
Lakes
Port Hope Composite 3 0 0
REPORT NO.: ESD-018-12 PAGE 24
2.8 Volunteer Firefighter Compliment
In a composite department, staffing the fleet of apparatus requires a commitment
from volunteer firefighters. Chart #17 illustrates the number of volunteer
firefighters, the number of truck seats in the volunteer stations and the ratio of
volunteer firefighters to seats at each station.
Chart #17
Number of Number of Truck Ratio of Volunteer
Volunteer Firefighters Seats in the Station Firefighters to Seat
Station 1 25 24 1:1
Station 2 25 13 <2:1
Station 3 25 14 <2:1
Station 4 25 11 >2:1
Station 5 25 8 3:1
A three-year analysis (2008 — 2010) to determine the average number of volunteer
firefighter that turn out to the various station when a structure fire is reported was
completed. The findings are provided in Chart #18.
Chart#18
The Average
o *r *r
Number of o 2 Oo 00 00 00
Volunteer z ' ° °�° ;n o L n °r° L M o
Firefighters a) Q Q
0 0 00 00 oo 00
that turn out ;v o 0 0 0 o o
for Structure > U_ N o °r° 0 0
Fires 0
Station 1 10.2 11 10 12 8 10
Station 2 13.8 14 14 15 12 14
Station 3 11.6 12 11 13 9 12
Station 4 7.6 8 8 9 5 8
Station 5 8.6 8 9 10 6 8
Today, ten volunteer firefighters per station are certified drivers of department
apparatus.
REPORT NO.: ESD-018-12 PAGE 25
As a Composite Fire Service, Clarington relies on the turn out of volunteer
firefighters to initiate a response, enhance an existing response and support a
response initiated by full-time fighters.
On average, 21 volunteer and fulltime firefighters assembled to extinguish loss
fires during the study period.
2.9 Dispatch Rules — Fire
Clarington Emergency and Fire Services dispatches trucks staffed by full-time
firefighters and trucks staffed by volunteer firefighters to reported structure fires.
Chart #19 (page 26) identifies the response type and the initial response
assignment. In addition, rules for selecting trucks include:
• The three closest and available pumper trucks will be dispatched;
• Both full-time pumper trucks will be dispatched (may add an additional
pumper to the response);
• When called for, the closest aerial will be dispatched;
• For rural structure fires, two tanker trucks will be initially dispatched;
• For confirmed rural structure fires, all five tankers will be dispatched; and
• With the information made available, the Officer in charge of the response
may alter the response as necessary at any time.
REPORT NO.: ESD-018-12 PAGE 26
Chart #19
RURAL
OCCUPANCY
RESPONSE TYPE RISK LEVEL INITIAL URBAN RESPONSE (non hydrant
ASSIGNMENT
area)
INCLUDE
Barn Fire Low 3 Pumpers, 1 Rescue 5 Tankers
Commercial Fire High 3 Pumpers, 1 Aerial, 1 Rescue 5 Tankers
5 Pumpers, 1 Aerial, 1 Rescue,
D.N.G.S. Fire Extreme Senior Officer, Fulltime
Firefighter Call-Back
Industrial Fire High 3 Pumpers, 1 Aerial, 1 Rescue 5 Tankers
Fire at a Hospital, Extreme
Nursing or Retirement (school/church 3 Pumpers, 1 Aerial, 1 Rescue 5 Tankers
Home, School, Church Low)
Apartment or High 3 Pumpers, 1 Aerial, 1 Rescue 5 Tankers
Townhouse Fire
House Fire Moderate 3 Pumpers, 1 Rescue 5 Tankers
2.10 Determining a Risk Level For Building Occupancies
This study utilized the OFM Fire Risk Sub-Model to assist in determining the fire
risk level for the various buildings within the Municipality of Clarington.
Definition of Risk
Risk is defined as a measure of the probability and consequence of an adverse
effect to health, property, organization, environment, or community as a result of
an event, activity or operation. For the purposes of the Fire Risk Sub-model, such
an event refers to a fire incident along with the effects of heat, smoke and toxicity
threats generated from the incident.
Probability Levels
The probability or likelihood of a fire within a community is often estimated based
on the frequency of previous experiences. A review of past events may involve
extracting relevant historical fire loss data, learning from the experiences of other
municipalities, and consulting members of the community with extensive historical
knowledge. Professional judgment based on experience should also be exercised
in combination with historical information to estimate probability levels. An
REPORT NO.: ESD-018-12 PAGE 27
evaluation of the probability of an event can be categorized into 5 levels of
likelihood as found in Chart #20.
Chart #20
Probability (Likelihood) Levels
Description Level Specifics
Rare 1 -may occur in exceptional circumstances
-no incidents in the past 15 years
-could occur at some time, especially if circumstances
Unlikely 2 change
-5 to 15 years since last incident
Possible 3 -might occur under current circumstances
-1 incident in the past 5 years
-will probably occur at some time under current
Likely 4 circumstances
-multiple or recurring incidents in the past 5 years
Almost -expected to occur in most circumstances unless
5 circumstances change
Certain -multiple or recurring incidents in the past year
Chart #20 was obtained from the OFM Fire Risk Sub-Model,
Note: The frequency of incidents provided should only be used as a general guide
when determining this value. It should be complemented with consideration of
events that occur within other communities. Events that have not taken place for a
long time in.your community may occur more frequently elsewhere. This may
serve as an indicator that there could be a strong likelihood than what historical
data indicates.
REPORT NO.: ESD-018-12 PAGE 28
Consequence Levels
The consequences as a result of fire are the potential losses or negative outcomes
associated with the event. The application of professional judgment and reviews of
past occurrences are important methods used for quantifying consequence levels.
Estimating the consequence level due to fire involves an evaluation of 4
components:
1. Life Safety
Injuries or loss of life due to occupant and firefighter exposure to life
threatening fire or other situations
2. Property Loss
o Monetary losses relating to private and public buildings, property
content, irreplaceable assets, significant historic/symbolic landmarks
and critical infrastructure due to fire
3. Economic Impact
o Monetary losses associated with property income, business closures,
downturn in tourism, tax assessment value, employment layoffs due to
fi re
4. Environmental Impact
o Harm to human and non-human (i.e. wildlife, fish and vegetation)
species of life and general decline in quality of life within the
community due to air/water/soil contamination as a result of fire and
fire suppression activities
An evaluation of the consequence due to fire can be categorized into 5 levels
based on severity as seen in Chart #21 (page 29).
REPORT NO.: ESD-018-12 PAGE 29
Chart #21
Consequence Levels
Description Level Specifics
-no life safety issue
Insignificant 1 -limited valued or no property loss
-no impact to local economy and/or
-no effect on general living conditions.
-potential risk to life safety of occupants
Minor 2 -minor property loss
-minimal disruption to business activity and/or
-minimal impact on general living conditions.
-threat to life safety of occupants
Moderate 3 -moderate property loss
-poses threat to small local businesses and/or
-could pose threat to quality of the environment.
-potential for a large loss of life
-would result in significant property damage
Major 4 -significant threat to large businesses, local economy and
tourism and/or
-impact to the environment would result in a short term,
partial evacuation of local residents and businesses.
-significant loss of life
-multiple property damage to significant portion of the
municipality
Catastrophic 5 -long term disruption of businesses, local employment, and
tourism and/or
-environmental damage that would result in long-term
evacuation of local residents and businesses.
Chart #20 was obtained from the OFM Fire Risk Sub-Model.
Overall Level of Risk and Priority
The overall risk assessment is completed by assigning probability and
consequence levels to potential adverse events or scenarios due to fire and
combining the two to arrive at an overall risk level. The Risk Analysis Matrix as
seen in Chart #21 (page 27) is an analytical tool that can be used for this
purpose. The highest overall risk levels are located in the bottom right corner of
the matrix and the lowest levels are at the top left corner. This tool also allows
the analyst to rank and classify the scenarios for the purpose of prioritizing risk
reduction measures.
REPORT NO.: ESD-018-12 PAGE 30
The risk and priority levels are defined as follows:
• L = Low Risk
Priority Level 1 (L1) - manage by routine programs and procedures, maintain
risk monitoring
• M = Moderate Risk
Priority Level 2 (L2) - requires specific allocation of management
responsibility including monitoring and response procedures
• H = High Risk
Priority Level 3 (L3) - community threat, senior management attention needed
• E = Extreme Risk
Priority Level 4 (L4) - serious threat, detailed research and management
planning required at senior levels
Chart#22
Risk Analysis Matrix
RISK ANALYSIS MATRIX-Level of Risk (Priority Level)
Consequence
Probability 1 2 3 4 5
(Insignificant) (Minor) (Moderate) (Major) (Catastrophic)
1
(Rare) L (1-1) L (1-1) M (1-2) H (1-3) H (1-3)
2
(Unlikely) L (1-1) L (1-1) M (1-2) H (1-3) E (1-4)
3
(Possible) L (1-1) M (1-2) H (1-3) E (1-4) E (1-4)
4
(Likely) M (1-2) H (1-3) H (1-3) E (1-4) E (1-4)
5
(Almost H (1-3) H (1-3) E (1-4) E (1-4) E (1-4)
Certain)
REPORT NO.: ESD-018-12 PAGE 31
Chart #22 was obtained from the OFM Fire Risk Sub-model.
As an example of determining a risk level we shall look at Nursing Homes:
Nursing Homes based on Provincial statistics have a Probability Level of 3 and
the Consequences should a fire occur is a 4 (major). Using the Risk Analysis
Matrix to plot a Probability of 3 and a Consequence of 4, Nursing Homes should
be considered an Extreme Risk.
Clarington's building stock was assessed individually or in groups, dependant on
the buildings intended purpose and assigned a risk level.
Chart #23 provides examples of the risk level applied to selected occupancies
utilizing the Fire Risk Sub-Model.
Chart #23
Occupancy Major Occeupancy Risk Level
Typ
Good Year Industrial F1 Extreme
All Nursing Homes Group B2 Extreme
Downtown Areas Group C, D & E Extreme
Veltri Apartment Building Group C & D High
Low Rise Apartment Group C High
Buildings
Detached Dwellings Group C Moderate
Courtice Business Area — Group D & E Low
Hwy 2
Assessing all of Clarington's building stock individually for the purpose of assigning
a risk level will require a large time commitment of the Department's staff over the
next several years.
Without a business registry to track changes in occupancy usage, risks could
change without the knowledge of the Municipal Departments. To manage risk we
must know the risk and where it is. When it comes to occupancy usage change, a
business registry should be strongly considered as a method of monitoring
occupancy usage.
REPORT NO.: ESD-018-12 PAGE 32
2.11 The Critical Task Matrix
Utilizing the results from the Fire Risk Sub-Model, and the Critical Task Matrix
from the Operational Planning Guide, we can determine how many firefighters
may be required should a fire occur in a building with an assigned risk level.
The Operational Planning document recommends that for each of the risks levels
Lower Effective Response Level (LERL) (lower number of firefighters) and an
Upper Effective Response Level (UERL) (upper number of firefighters) may be
required to complete the fireground critical tasks.
The LERL and UERL are based on the number of persons required to perform 27
fireground critical tasks recognized in the Incident Management System.
Chart#24 provides the LERL and UERL ranges for the risk categories.
Chart#24
Low Risk Moderate Risk High Risk Extreme Risk
LERL 4 firefighters 16 firefighters 36 firefighters 49 firefighters
UREL 13 firefighters 43 firefighters 83 firefighters 108 firefighters
Chart#23 figures were obtained from the Fireground Critical Task Matrix within
the Operational Planning Document. See Appendix A for a complete Fireground
Critical Task Matrix.
REPORT NO.: ESD-018-12 PAGE 33
2.12 Applying the Critical Task Matrix to Fires in the Study Period
Over a five year period 220 loss fires were reported to the OFM. 29 occurred in
2006, 53 occurred in 2007, 51 occurred in 2008, 41 occurred in 2009 and 46
occurred in 2010. All 220 loss fires were analyzed to determine if the Critical
Task Matrix applied, how many times firefighters on scene met the LERL and
how many times the LERL could not be achieved. Chart #25 illustrates the
results of this analysis.
Chart #25
30
25 26
24
20
21
15 17
10 12
s
�5
5
0
0
2006 2007 2008 2009 2010
E Below Critical Task Matrix LERL
Critical Task Matrix LERLAcheived or Greater
rl Critical Task Matrix-Stand Down, Mitigated With Staff On-Scene
In 2006, 4 loss fires were extinguished by firefighters on scene below the Critical
Task Matrix LERL. In analyzing these calls it was determined that the occupancy
types were Moderate Risk and that the number of firefighters on scene
extinguished the fire.
In addition, 13 loss fires were extinguished by firefighters on scene at or greater
than the Critical Task Matrix LERL and the Critical Task Matrix was not
applicable for 12 loss fires.
REPORT NO.: ESD-018-12 PAGE 34
In 2007, 27 loss fires were extinguished by firefighters on scene at or greater
than the Critical Task Matrix LERL and the Critical Task Matrix was not
applicable for 26 loss fires.
In 2008, 9 loss fires were extinguished by firefighters on scene below the Critical
Task Matrix LERL. In analyzing these calls it was determined that 4 fires
occurred in Moderate Risk occupancies, 3 in High Risk and 2 in Extreme Risk.
In one case, firefighters were extinguishing a High Risk occupancy fire when an
Extreme Risk occupancy fire was reported. In all cases the fires were
extinguished with the firefighters on scene, with no additional trucks, firefighters
or Mutual Aid requested.
In addition, 25 loss fires were extinguished by firefighters on scene at or greater
than the Critical Task Matrix LERL and the Critical Task Matrix was not
applicable for 17 loss fires.
In 2009, 1 loss fire was extinguished by firefighters on scene below the Critical
Task Matrix LERL. In analyzing the call it was determined that the occupancy
type was Moderate Risk, that the number of firefighters on scene extinguished
the fire with no additional trucks or firefighters being requested.
In addition, 16 loss fires were extinguished by firefighters on scene at or greater
than the Critical Task Matrix LERL and the Critical Task Matrix was not
applicable for 24 loss fires.
In 2010, 1 loss fire was extinguished by firefighters on scene below the Critical
Task Matrix LERL. In analyzing the call it was determined that the occupancy
type was Moderate Risk, that the number of firefighters on scene extinguished
the fire without additional trucks or firefighters being requested.
In addition, 24 loss fires were extinguished by firefighters on scene at or greater
than the Critical Task Matrix LERL and the Critical Task Matrix was not
applicable for 21 loss fires.
Chart#25 statistics were obtained from assessing Department records and the
OFM Statistics Branch.
After applying the Critical Task Matrix to loss fires during the study period, the
number of firefighters on scene met or exceeded the OFM Critical Task Matrix
LERL for 86% of the fires. If the OFM Critical Task Matrix UERL (Moderate Risk
43 firefighters, High Risk 83 firefighters, Extreme Risk 108 firefighters) was used
as the bench mark, this number would drop to less than 4%.
REPORT NO.: ESD-018-12 PAGE 35
3.0 CONCLUSION
The purpose of this report was to provide Council with an evaluation of the
capabilities of the fire department based on a community risk assessment and to
assist them in meeting their responsibilities as per the Fire Protection and
Prevention Act, 1997 (FPPA) and other applicable legislations.
The evaluation produced a comprehensive building stock inventory, provided for
an analysis of the department's capabilities over the study period to extinguish
fires and if gaps that impacted the department's capabilities were obvious, make
recommendations to close the gaps.
Suppressing a fire with a large number of firefighters simultaneously would be
ideal for any municipality however, it is neither reasonable nor affordable in a
municipality with Clarington's community profile. The data over the study period
would suggest Clarington Emergency & Fire Services (CEFS) is responding with
sufficient resources to the majority of fires, residential fires.
To ensure Clarington continues to meet their responsibilities as per the FPPA,
staff will work with the Master Fire Plan consultants and continue with internal
reviews of operational policies; volunteer firefighter redeployment, training and
retention; full-time firefighter deployment and training; and report to Council
changes to the delivery of fire suppression services.
The greatest effect a Fire Service can have on a community is preventing fire from
happening. The challenge ahead will be maintaining a balance in the
Department's day-to-day operations that provides for a community educated in
fire safety; that practices fire safety; that ensures fire safety standards are in place
and that through code enforcement, safer buildings are maintained for occupants
as well as the emergency response teams.
To provide safer buildings for occupants the Municipality must continue to be
progressive in fire life safety and proactively engage in Fire Code enforcement. A
proactive first step would be creating a business license registry. The registry
would provide municipal departments with the ability to monitor occupancy use
and when changes occur, ensure all codes and standards are applied. Step two
would be hiring an additional Fire Prevention Inspector. Hiring an additional
Inspector will enhance the abilities of the Department to be progressive in fire life
safety education and Fire Code enforcement whereby reducing the probability of
fire.
4.0 RECOMMENDATIONS — NO RECOMMENDATIONS
REPORT NO.: ESD-018-12 PAGE 36
5.0 CONCURRENCE: Not Applicable
CONFORMITY WITH'STRATEGIC PLAN
The recommendations contained in this report conform to the general intent of the
following priorities of the Strategic Plan:
_ Promoting economic development
X Maintaining financial stability
_ Connecting Clarington
_ Promoting green initiatives
Investing in infrastructure
Showcasing our community
_ Not in conformity with Strategic Plan
Staff Contact: Gord Weir, Director of Emergency and Fire Services/Fire Chief
List of interested parties to be advised of Council's decision:
Dan Worrall, President Local 3139
Peter Guiry, Fire Protection Adviser, Office of the Ontario Fire Marshal
REPORT NO.: ESD-018-12 PAGE 37
Appendix A
The Five-Step Process including Forms
STEP 1:
Assessing Fire Risks within the Community
• Understand the OFM Fire Progression Curve to assess risk;
• Complete a comprehensive risk assessment using the OFM Fire Risk Sub-Model;
and
• Categorize community fire risks based on the OFM Fire Risk Sub-Model using
Form 100.
STEP 2:
Collecting Call Data
• Collect response data for all fire calls to identify current capabilities using Form
200.
STEP 3:
Using the Critical Task Matrix to Identify Gaps in Fire Suppression Capabilities
• Determine whether responses to actual fire calls (Form 200) correspond to the
staffing ranges in the Critical Task Matrix (Form 300A) for each risk level;
• Identify potential gaps in the fire suppression capabilities of the fire department to
respond to fires at low, moderate, high and extreme risk levels (specific
occupancies/locations) based on an analysis of 11 questions (Form 300B); and
• Identify potential gaps (and the need to preplan for them) in the fire suppression
capabilities of the fire department for all occupancies/locations identified on Form
100 for which there is no response data or history, based on an analysis of 11
questions (Form 300B).
STEP 4:
Developing Options and Recommendations for Identified Gaps in Fire Suppression
Capabilities
• Summarize identified gaps in fire suppression capabilities; and
• Develop options to close each gap, and select an option to recommend to council.
STEP 5:
Preparing a Report to Council
• The report to council provides a summary of community risks, current capabilities
and fire suppression gaps while providing options and recommendations for
council's consideration.
REPORT NO.: ESD-018-12 PAGE 38
OFM Fire Risk Sub-Model Worksheet(Form 100)
This form will assist in documenting risks for current occupancies/locations within the
community. Information being collected includes: building code classification, occupancy
type, key risk concerns, status of Ontario Fire Code compliance, fire risk scenario, and risk
levels. Other sources of data, such as the simplified risk assessments (SRA) and hazard
identification and risk assessments (HIRA), may be used to complete this form.
--mEn-77
Ix,
{
REPORT NO.: ESD-018-12 PAGE 39
Actual Fire Call Data Form (Form 200)
This form is for the collection of actual response data for each reported fire. The types of
information being collected include: responding apparatus, number of firefighters, time
dispatched, response time, and accumulated number of firefighters on scene.
a
Q
I
z
e
g
IF
REPORT NO.: ESD-018-12 PAGE 40
Critical Task Matrix (Form 300A)
This form, based on the Incident Management System (IMS), will assist in identifying
fireground staffing capabilities based upon low, moderate, high and extreme risk levels
within the community.
Fireground Critical Tasks Low Risk Moderate Risk High Risk Extreme Risk
LERL T-U-L LERL UERL LERL UERL LERL UERL
Incident Command I I I I 1 1
Puma Operator 1 11 1 1 1
Attack Line t(.(.onioq&Extinguish) 2 2 2 2 2
Additional Frump Opefator(s) 0 0 a 2 2 4 4 6
Additional Attack Une(Confine&E idiriciviFli Sackup 0 0 a 4 4 a 8 12
searnri&Rescue 0 0 2 4 2 6 2 a
firoal Rapid intervention Team i[RIT) 0 0 4 6 8 16 12 22
Veri'lation 0 2 2 2 2 4 2 8
YVater Supply-pressurized 0 1 1 1 1 t 1 2
Water Supply-nors-pt-Amurize-J a 3 1 4 2 6 4 8
Incident Response E otry Teom 0 0 0
zero Utilities a t I I I 1 1 1
( ester 1hers, ro or
no number has been Laddering(Ground Laddersl 0 2 0 2 0 4 0 a
assigned,the task
may be performed at Laddeting(Aerial or elevavrig device operator) 0 2 a 2 0 2
the direction of the
incident commander) Exposwe Protedion 0 1 4 2 6 2 6
incillent-safely Officer 0 1 1 F 1 1
Acoounlability 4 i I I I I
E ritry Control Q 2— 1 —4 1 —4
Rehabilitation 0 1 1 1 1 1
Selvage 0
LighliN, a 2 0 2
Directing O,=,panis a 4 G 4
Sector Officers 1 4 1 4
Air k0nagerneril(air refilling station,etc
Logistics Officer
Administrative and/or Fmar,,-a Officer
Planning Offirkr
Other or Additiorlial Eva,-vations(toirg,vajep
Response .
Considerations Communications fdispat&)
Pvblit,'InformaUcirt Officer
Overhaul
Additional
Incident Response Range 4 13 16 43 36 83 49 108
Summary Total Fife Department Including External
Fire Call Inddent Response Range within)
Notes:
♦ LERL=Lown,Effactrva Response Level & UERL=Upper Effective Response Leyet,[together form the critical staffing rargel
* ThiF,tool,provides a merge of staffing iequiremenis only,Actual nprnt�fs may vary depending on Ine fee risk that exisis in the nitmicipality.Tasks
purformod an breground based on doosims made by Incident Commander
* Planning moderate,high and extreme nslif, wilt fijohervaliciata staffing requirements to ensure the gplinium levol:of proleclMn
fu tho MuOltripillily.
9, Sinitiftaneous events will require further consideration due to additional personnel retittirement5 beyorA the scope of this matrix
Iticideril Command will assume tof the aomuiltalb4ity and 5s try 00,s wheii no person has been il&sigAed�or tiftl a poessoo
has been assigned the task:
REPORT NO.: ESD-018-12 PAGE 41
Identifying Gaps in Fire Suppression Capabilities Form (Form 3006)
This form, comprised of 11 questions, is to be used to identify gaps in the fire suppression
capabilities of the fire department. It is to be used for each fire call as well as to be used as a
preplanning tool for occupancies and locations identified on Form 100 where there is no
response data or history.
Actual fire call data (Form 200):
No response data or history:
Occupancy/Location: Risk Level:
1. Did/Would the total number of responding firefighters or the current complement of firefighters
fall within the Critical Task Matrix range? Explain, relating back to your call data form (Form 200)
and Critical Task Matrix(Form 300A).
2. Was/Would mutual aid (be) used to supplement staffing to meet the Critical Task Matrix range?
(Note: Mutual aid is not intended to be used for your day-to-day fire suppression requirements.)
Explain, relating back to your call data form (Form 200) and Critical Task Matrix(Form 300A).
(Examples:Are you authorized to participate in mutual aid?Is mutual aid being used routinely to
offset shortages in suppression staffing on a regular basis?Does the response time of mutual aid
partners positively affect the completion of critical tasks?)
3. Do/Would fire protection or automatic aid agreements(not including mutual aid) provide the
necessary resources for the occupancies in the community? Explain, relating back to your call
data form (Form 200) and Critical Task Matrix(Form 300A). (Example:Agreement in place does
not provide additional firefighters for the evacuation of long-term care occupancies.)
4. Are/Would the performance requirements of the Establishing and Regulating Bylaw and council
resolutions(be) achieved? Explain, relating back to your call data form (Form 200) and Critical
Task Matrix(Form 300A). (Considerations: Does your E&R Bylaw define fire protection services
and to what level?Has council set benchmarks for response time? What exactly are you
authorized to do? Were your SOG and policies followed?)
5. Are/Would there (be) any operational impacts due to response time? Explain, relating back to
your call data form (Form 200) and Critical Task Matrix(Form 300A). (Considerations: defensive
attack vs. offensive attack, traffic, weather, distance, lack of response protocols.)
REPORT NO.: ESD-018-12 PAGE 42
6. Are/Would there (be) any operational impacts due to apparatus factors? Explain, relating back
to your call data form (Form 200) and Critical Task Matrix(Form 300A). (Examples:mechanical
problems, two-person cab for a four-person crew, not enough pump capacity, no aerial device
for elevated master streams.)
7. Are/Would there (be) any operational impacts due to equipment factors? Explain, relating back
to your call data form (Form 200) and Critical Task Matrix (Form 300A). (Examples:insufficient
number of SCBA, no air cylinder refilling capabilities, outdated equipment.)
8. Are/Would there (be) any operational impacts due to adherence of the OHSA and Section 21
guidance notes? Explain, relating back to your call data form (Form 200) and Critical Task Matrix
(Form 300A). (Examples: unable to perform rescue due to lack of R/T, insufficient training of
suppression staff for tasks required, no incident command.)
9. Are/Would there (be) any operational impacts due to non-compliance with the Ontario Fire
Code and/or the Ontario Building Code? Explain, relating back to your call data form (Form 200)
and Critical Task Matrix(Form 300A). (Example: the fire alarm system was not functioning;
therefore evacuation and rescue were required.)
10. Are/Would there (be) any Ontario Fire Code or Ontario Building Code non-compliance issues
that change/may change the risk level of the occupancy? Explain, relating back to your call data
form (Form 200)and Critical Task Matrix (Form 300A). (Consideration/Example: What effect did
the non-compliance issues have on fire department operations?A fire in a single-family dwelling
operating as a group home changing risk from moderate to high, thereby increasing the need for
search and rescue.)
11. Excluding any Ontario Fire Code or Ontario Building Code non-compliance issues, apparatus,
equipment and response times, are/would there (be) any other factors that cause/may cause
operational limitations? Explain, relating back to your call data form (Form 200) and Critical Task
Matrix(Form 300A). (Examples: water supply, access, hydrant failures and lack of water source.)
REPORT NO.: ESD-018-12 PAGE 43
Options and Recommendations to Close Gaps in
Fire Suppression Capabilities Form (Form 400)
This form will provide options and recommendations to close gaps in the fire suppression
capabilities of the fire department for low, moderate, high and extreme risk levels or
specific occupancies/locations.
Occupancy/Location: Risk Level:
Gaps in Fire Options
Form 3008 Questions Suppression (Costs & Recommendations
Persons
Capabilities
Required)
1. Did/Would the total number of
responding firefighters or the current
complement of firefighters fall within
the Critical Task Matrix range?
2. Was/Would mutual aid (be) used to
supplement staffing to meet the Critical
Task Matrix range? (Note: Mutual aid is
not intended to be used for your day-
today fire suppression requirements.)
3. Do/Would fire protection or automatic
aid agreements(not including mutual
aid) provide the necessary resources for
the occupancies in the community?
4. Are/Would the performance
requirements of the Establishing and
Regulating Bylaw and council resolutions
(be) achieved?
5. Are/Would there (be) any operational
impacts due to response time?
REPORT NO.: ESD-018-12 PAGE 44
6. Are/Would there (be) any operational
impacts due to apparatus factors?
7. Are/Would there (be) any operational
impacts due to equipment factors?
8. Are/Would there (be) any operational
impacts due to adherence of the OHSA
and Section 21 guidance notes?
9. Are/Would there (be) any operational
impacts due to non-compliance with the
Ontario Fire Code and/or the Ontario
Building Code?
10. Are/Would there (be) any Ontario Fire
Code or Ontario Building Code
noncompliance issues that change/may
change the risk level of the occupancy?
11. Excluding any Ontario Fire Code or
Ontario Building Code non-compliance
issues, apparatus, equipment and
response times, are/would there (be)
any other factors that cause/may cause
operational limitations?
REPORT NO.: ESD-018-12 PAGE 45
Appendix B
Legislation Affecting the Ontario Fire Service
The operation of a fire department in Ontario is affected by both provincial and federal
legislation. There are also international standards that are commonly used by the fire
service throughout North America. It is important that fire service leaders have
knowledge of the context of all the acts or regulations affecting the operations and
liability of a municipality and its fire department.
PROVINCIAL LEGISLATION
LEGISLATION AREAS OF SCOPE/CONCERN MINISTRY RESPONSIBLE
Fire Protection and Mandates and authorizes both the OFM and municipalities. Community Safety&
Prevention Act, 1997 Part IX is generally the responsibility of the Ministry of Correctional Services
and Ontario Fire Code Labour, except where terms and conditions in collective
agreements may adversely affect the provision of fire
protection.
Provincial Offences Act Assistants to the Fire Marshal are provincial offences officers Attorney General
under the act for the purpose of smoke alarm related
offences.
Municipal Act, 2001 Authorizes the passing of bylaws which include those Municipal Affairs&
necessary for the provision of fire protection Housing
Occupational Health and Human resources Occupational health & safety Labour
Safety Act and the
various regulations
Ontario Regulation Requires propane operators to obtain fire department Ministry of Consumer
211/01 Propane Storage approval for Risk and Safety Management Plans.The fire Services and
and Handling, Latest department approves fire safety,fire protection and administered by the
amendment 0. Reg. emergency preparedness elements of the RSMPs. Technical Standards and
440/08 Safety Authority
Environmental Requires fire department personnel to report spills to MOE Environment
Protection Act (Ontario)
REPORT NO.: ESD-018-12 PAGE 46
Dangerous Goods Governs the transportation of dangerous goods Transportation
Transportation Act
(Ontario)
Emergency Requires municipalities to have an emergency plan and a Community Safety&
Management and Civil trained community emergency management coordinator Correctional Services
Protection Act
Territorial Divisions Act Defines municipal boundaries which include fire protection Municipal Affairs&
areas for which the municipality has responsibility Housing
Building Code Act, 1992 Provides authority for municipalities to appoint certain fire Municipal Affairs&
personnel as building inspectors Housing
Highway Traffic Act Governs the response of firefighters on roads that have been Transportation
closed by police,the use of flashing green lights on
firefighters' personal vehicles, and controlling traffic at
accident scenes.
Contains regulated requirement to log hours of service for
operation of commercial motor vehicles.
Forest Fire Prevention Applies only to "Fire Regions" as defined in the act. Controls Natural Resources
Act outdoor fires in "Restricted Fire Zones". It requires
municipalities to extinguish grass, brush or forest fires within
their limits. Provides authority for appointment of
"Wardens" and "Officer" by the Minister. Also Regulation
207/96 controls outdoor fires outside of restricted fire zones
Development Charges Provides the authority for portions of development charges Municipal Affairs&
Act to be allocated to fire services Housing
Coroners Act Regulates the control of bodies.Authorizes/regulates Community Safety&
coroner's inquests and coroner's inquest recommendations Correctional Services
Day Nurseries Act Defines the approvals from the fire chief that are required to Community and Social
operate a daycare facility Services
Employment Standards Human resources Labour
REPORT NO.: ESD-018-12 PAGE 47
Act
Human Rights Code Defines how boards of inquiry, complaints, discrimination Management Board of
and enforcement are to be handled Cabinet
Labour Relations Act Human Resources Labour
Municipal Freedom of To provide access to information held by institutions and to Management Board of
Information and protect the privacy of individuals with respect to personal Cabinet
Protection of Privacy Act information about themselves held by institutions
Pesticides Act Makes mandatory the reporting of wholesale and retail Environment
pesticides to the fire department
Workplace Safety and Legislated requirement to report accidents and provide and Labour
Insurance Act document training
Presumptive legislation
Fire Code Mandates and authorizes both the OFM and municipalities. Part IX is
generally the responsibility of the Ministry of Labour, except where terms and conditions
in collective agreements may adversely affect the provision of fire protection.
Community Safety & Correctional Services Provincial Offences Act Assistants to the
Fire Marshal are provincial offences officers under the act for the purpose of smoke
alarm related offences. Attorney General Municipal Act, 2001 Authorizes the passing of
bylaws which include those necessary for the provision of fire protection Municipal
Affairs & Housing Occupational Health and Safety Act and the various regulations
Human resources Occupational health & safety Labour Ontario Regulation 211/01
Propane Storage and Handling, Latest amendment O. Reg. 440/08 Requires propane
operators to obtain fire department approval for Risk and Safety Management Plans.
The fire department approves fire safety, fire protection and emergency preparedness
elements of the RSMPs. Ministry of Consumer Services and administered by the
Technical Standards and Safety Authority Environmental Protection Act (Ontario)
Requires fire department personnel to report spills to MOE Environment Dangerous
Goods Transportation Act (Ontario) Governs the transportation of dangerous goods
Transportation Emergency Management and Civil Protection Act Requires
municipalities to have an emergency plan and a trained community emergency
management coordinator Community Safety & Correctional Services Territorial
Divisions Act Defines municipal boundaries which include fire protection areas for which
the municipality has responsibility Municipal Affairs & Housing Building Code Act, 1992
Provides authority for municipalities to appoint certain fire personnel as building
inspectors Municipal Affairs & Housing Highway Traffic Act Governs the response of
REPORT NO.: ESD-018-12 PAGE 48
firefighters on roads that have been closed by police, the use of flashing green lights on
firefighters' personal vehicles, and controlling traffic at accident scenes. Contains
regulated requirement to log hours of service for operation of commercial motor
vehicles. Transportation Forest Fire Prevention Act Applies only to "Fire Regions" as
defined in the act. Controls outdoor fires in "Restricted Fire Zones". It requires
municipalities to extinguish grass, brush or forest fires within their limits. Provides
authority for appointment of"Wardens" and "Officer" by the Minister. Also Regulation
207/96 controls outdoor fires outside of restricted fire zones. Natural Resources
Development Charges Act Provides the authority for portions of development charges to
be allocated to fire services Municipal Affairs & Housing Coroners Act Regulates the
control of bodies. Authorizes/regulates coroner's inquests and coroner's inquest
recommendations Community Safety & Correctional Services
Fire Protection and Prevention Act, 1997 (FPPA)
The Fire Protection and Prevention Act, 1997 (FPPA) came into force in October 1997.
It is an act to promote fire prevention and public safety in Ontario and as such it
addresses such things as the delivery of fire suppression, fire prevention, fire safety
education, communication, training of persons involved in the provision of fire protection
services, and rescue and emergency services.
The Fire Protection and Prevention Act, 1997 (FPPA):
• Establishes the authority of the fire chief of a municipality to carry out his or her
duties in enforcing the act;
• Defines the role of the Office of the Fire Marshal and defines its relationship with
municipal fire departments; and
• Defines the mandates of both the OFM and municipalities.
There are a number of parts to the act. This guide highlights three sections: Part I
Definitions, Part II Responsibility for Fire Protection Services including methods of
providing services and Part III Fire Marshal. The full act is available on a-laws.
PART I: DEFINITIONS
UNDERSTANDING THE DEFINITION OF "FIRE PROTECTION SERVICES"
"Fire protection services" includes fire suppression, fire prevention, fire safety education,
communication, training of persons involved in the provision of fire protection services,
rescue and emergency services and the delivery of all those services. [Subsection 1.(1)]
PART II: RESPONSIBILITY FOR FIRE PROTECTION SERVICES
Part II - Subsection 2.(1) is the basis for the minimum acceptable model. This
subsection of the act requires every municipality to:
REPORT NO.: ESD-018-12 PAGE 49
a. establish a program which includes public education with respect to fire safety
and certain aspects of fire prevention; and
b. provide other fire services as necessary, according to the municipality's needs
and circumstances.
METHODS OF PROVIDING SERVICES
Municipalities are required to provide services by either:
a. appointing a community fire safety officer or community fire safety team; or
b. establishing a fire department. [Subsection 2.(2)]
If a municipality decides to establish a fire department, the fire department must provide
fire suppression services. [Subsection 5.(1)]
Municipalities may enter into agreements to either provide fire protection services to
lands or premises that are situated outside the territorial limits of the municipality or to
receive fire protection services from a fire department situated outside the territorial
limits of the municipality. [Subsection 2.(5)]
The same authority is provided to territories without municipal organization.
MUNICIPAL FIRE CHIEF
If a fire department is established for the municipality, the council shall appoint a fire
chief [Subsection 6.(1)]. A fire chief is the person who is ultimately responsible to the
council of a municipality that appointed him or her. The fire chief is automatically the
Chief Fire Official [Subsection 1.1.8 (Ontario Fire Code)] and an Assistant to the Fire
Marshal. [Subsection 1.1. (1)]
MUNICIPAL BYLAWS
Section 7 authorizes a council of a municipality to pass bylaws under the FPPA to
regulate fire prevention, to regulate the setting of open-air fires and to designate private
roads as fire routes.
PART III: FIRE MARSHAL
POWERS OF THE FIRE MARSHAL
• monitor, review and advise municipalities respecting fire protection services and
to make recommendations to councils for improving the efficiency and
effectiveness of those services
• issue directives to Assistants of the Fire Marshal
• advise and assist ministries and agencies respecting fire protection matters
• issue guidelines to municipalities
REPORT NO.: ESD-018-12 PAGE 50
• co-operate with anybody or person interested in developing and promoting fire
protection services
• issue long service awards to persons involved in the fire service
• exercise other assigned powers and duties [Subsection 9.(1)]
DUTIES OF THE FIRE MARSHAL
to investigate the cause, origin and circumstances of any fire or explosion, which
in the opinion of the Fire Marshal, may have caused a fire, explosion, loss of life
or damage to property.
• to advise municipalities in the interpretation and enforcement of the FPPA and
the regulations made under it
• to provide information and advice on fire safety matters
• to keep records of every fire reported and develop and maintain statistics
• to develop training programs
• to maintain a fire college
• perform such other duties as may be required [Subsection 9.(2)]
ONTARIO FIRE CODE
The 2007 Ontario Fire Code is a regulation (Ontario Regulation 213/07) under the Fire
Protection and Prevention Act, 1997. It is a companion document to the Ontario Building
Code, designed to maintain fire protection features in working order once a building or
portions of the building become occupied.
The Fire Code maintains existing buildings, requires retrofit upgrades to some buildings,
refers to the Ontario Building Code as a referenced standard and addresses hazardous
processes and fire safety planning for existing buildings.
The 2007 Fire Code is written in an objective-based format that promotes greater
flexibility and more uniform enforcement by linking each (technical) code provision to
one or more explicitly stated objectives and functional statements. The objective-based
format provides greater flexibility by allowing equivalents known as "alternative
solutions" which must be prepared and evaluated using a prescribed process.
PROVINCIAL OFFENCES ACT
Assistants to the Fire Marshal have been designated as provincial offences officers with
limited authority under the Provincial Offences Act. This designation authorizes them to
commence proceedings under Part 1 of the Provincial Offences Act for offences under
the Ontario Fire Code for which short form wording and set fines have been established.
MUNICIPAL ACT, 2001
The Municipal Act, 2001 is the legislation that provides the authority for a municipal
council to govern at the local level. It grants to a municipality the capacity, rights,
REPORT NO.: ESD-018-12 PAGE 51
powers and privileges of a natural person for the purpose of exercising its authority
under the act or any other act. This is broadly interpreted to confer broad authority to
govern their affairs as they consider appropriate and enhance their ability to respond to
municipal issues. The act directs that municipal councils shall exercise all capacity,
rights, powers and privileges by bylaw unless the municipality is authorized to do
otherwise. This applies to all municipal powers, whether conferred by the act or
otherwise. This act also:
• addresses the authority to transfer a lower tier power to an upper tier
municipality;
• defines the role of council and the head of council;
• defines the role of officers and employees of the municipality; and
• addresses immunity from liability.
Further,
PART VI - PRACTICES AND PROCEDURES
Municipal Organization and Administration
ROLE OF COUNCIL
224. It is the role of council,
(a) to represent the public and to consider the well-being and interests of the
municipality;
(b) to develop and evaluate the policies and programs of the municipality;
(c) to determine which services the municipality provides;
(d) to ensure that administrative policies, practices and procedures and controllership
policies, practices and procedures are in place to implement the decisions of council;
(d.1) to ensure the accountability and transparency of the operations of the municipality,
including the activities of the senior management of the municipality;
(e) to maintain the financial integrity of the municipality; and (f) to carry out the duties of
council under this or any other Act. 2001, c. 25, s. 224; 2006, c. 32, Sched. A, s. 99.
OCCUPATIONAL HEALTH AND SAFETY ACT
The Occupational Health and Safety Act and various regulations therein:
• outline duties and responsibilities of an employer, supervisor or worker;
• mandate the need for a health and safety committee within most fire
departments;
• regulate protective clothing for firefighters; and
REPORT NO.: ESD-018-12 PAGE 52
• provide the authority under Section 21, to establish the Ontario Fire Service
Health & Safety Advisory Committee (known as the Section 21 Committee),
which deals with health and safety issues as they arise in the fire service sector.
SECTION 21 GUIDANCE NOTES
A comprehensive review of the requirements of the Section 21 Manual was undertaken.
The following Guidance Notes are particularly applicable to this report.
• Note #2-1 Incident Command
• Note #2-2 The Buddy System
• Note #2-4 Incident Safety Officer
• Note #6-11 Rapid Intervention Teams (Rescue)
• Note #7-2 Training Requirements
• Note #7-3 Documentation of Training Plus Daily Training Report
PROPANE REGULATIONS
In August, 2008, the Government of Ontario embarked on a review of the storage,
handling, location and transportation of propane in Ontario. On December 11, 2008,
Ontario Regulation 440/08 was filed. It amended Ontario Regulation 211/01, Propane
Storage and Handling, to require propane operators to prepare and implement Risk and
Safety Management Plans (RSMPs). This requirement applies to new or modified
facilities effective January 1, 2010, and to all existing operators at the time of license
renewal after January 1, 2011.
ENVIRONMENTAL PROTECTION ACT (ONTARIO)
The Environmental Protection Act (EPA) holds a member of a law enforcement agency
or an employee of a municipality responsible if he or she is made aware of a spill or the
release of any pollutant and fails to take action to report the incident to the Ministry of
the Environment (MOE). Where a public authority, such as a police or fire department,
has knowledge of a spill situation that it believes may not have been reported, the EPA
requires that they notify the MOE immediately, unless the incident is exempt from the
notification requirement. All municipal employees are under this duty to report.
DANGEROUS GOODS TRANSPORTATION ACT (ONTARIO)
The federal act provides for the provinces to enact legislation to govern the road mode
of transportation. This provincial act governs the transportation of dangerous goods on
Ontario highways. Ontario has adopted the federal regulations, thereby achieving
uniformity across the country.
REPORT NO.: ESD-018-12 PAGE 53
EMERGENCY MANAGEMENT AND CIVIL PROTECTION ACT
The Emergency Management and Civil Protection Act requires every municipality to
develop and implement an emergency management program to be adopted by bylaw.
The emergency management program must include an emergency plan, a training
program and a public education program. The head of council (or designate) can
declare an emergency and the act gives the head of council the authority to protect the
property, health, safety and well being of the citizens of an emergency area. The act
also provides protection from personal liability for doing any act or neglecting to do any
act in good faith in the implementation or intended implementation of an emergency
plan.
ONTARIO REGULATION 380-04 UNDER THE
EMERGENCY MANAGEMENT AND CIVIL PROTECTION ACT
Every municipality shall:
• designate an employee of the municipality or a member of council as its
emergency management program coordinator;
• have an emergency management program committee;
• have a municipal emergency control group;
• establish an emergency operations centre;
• designate an employee of the municipality as its emergency information officer;
and
• formulate an emergency response plan under the emergency plan.
A municipality is authorized to exercise a municipal power in response to an order of the
Premier or his/her delegate without a bylaw.
It is important to note that the Premier can declare a state of emergency and direct and
control the emergency and require any municipality to provide such assistance
considered necessary within the jurisdiction of the municipality or out of the jurisdiction
of the municipality.
TERRITORIAL DIVISIONS ACT
The Territorial Divisions Act defines provincial and municipal boundaries. These
boundaries are specified in the existing act and the clerk of a local municipality should
be contacted to verify the municipal boundaries for response purposes (e.g., Does a
municipality's boundary stop at water's edge or halfway across the lake?). Knowing the
municipal boundaries is important to ensure fire protection is being provided to all areas
of the municipality.
REPORT NO.: ESD-018-12 PAGE 54
BUILDING CODE ACT, 1992
Under the Building Code Act, 1992, a municipal council has the right to appoint the fire
chief and members designated as fire prevention personnel as a building inspector with
the same applicable legal immunity. The fire chief would be responsible for fire safety
matters contained in the code and that are clearly defined in a municipal bylaw
appointing the chief as an inspector. Ideally, such a bylaw will specify that the chief
building official shall not issue a building permit unless the inspector (fire chief)
approves the drawings submitted with the application for a permit.
Fire department personnel appointed as building inspectors are required to successfully
complete examinations on both the technical aspects of the Ontario Building Code (fire
protection) and the administrative elements (general legal process).
ONTARIO BUILDING CODE
The Ontario Building Code requires that the plans of certain facilities be reviewed, as
they relate to fire-related matters including:
• access for firefighting and firefighting vehicles;
• provisions for water supplies, hydrants, sprinkler and standpipe systems;
• provisions for fire walls, separations and closures to affect compartmentalization;
and
• building components such as early detection and warning systems, elevator
controls and emergency lighting for use of occupants and emergency personnel.
While it is understood that municipal building departments review all facets of building
plans and specifications presented to them, the fire department and fire prevention
personnel particularly, are concerned with the construction and application of the
building code as it relates to their involvement with the occupied building.
THE HIGHWAY TRAFFIC ACT
In the performance of firefighting duties, the Highway Traffic Act includes provisions that
enable:
• fire department apparatus to respond efficiently to emergencies,
• firefighters to control traffic at accident scenes; and
• firefighters to travel on roads that have been closed by police if necessary to
respond to a fire or emergency.
The act addresses the type of flashing green light a firefighter may have on his or her
personal vehicle while responding to a fire or emergency and the issuing of green
license plate stickers to firefighters.
REPORT NO.: ESD-018-12 PAGE 55
The act regulates logging a driver's time while operating a commercial motor vehicle.
This has an effect on the driving logs of those fire personnel who also drive commercial
motor vehicles for any operator. For instance, if the firefighter also drives a snow plough
for the municipality (a commercial motor vehicle), then the hours he or she spends
working for a fire department (including hours in attendance at an emergency) must be
logged. This may limit a firefighter's ability to respond to emergency calls, attend
training, perform inspections, and/or participate in public education and prevention
initiatives.
Under the Highway Traffic Act, Ontario Regulation 611 also requires annual safety
inspection of commercial vehicles, including fire apparatus (over 4500 kilograms).
FOREST FIRE PREVENTION ACT (FFPA)
This act applies only to fire regions. Municipalities are responsible for suppressing
grass, brush and forest fires within their limits; this is subject to an agreement with the
Ministry of Natural Resources (MNR). If a municipality does not extinguish grass, brush
or forest fires in a manner that, in the opinion of an officer (MNR) is acceptable, the
MNR will do it and the municipality will be billed for costs and expenses incurred by the
ministry.
Under the FFPA, "Wardens" and "Officers" can only be appointed by the minister.
Wardens have authority to enforce such provisions of the act and regulations as
specified in the appointment in areas specified in the appointment. Officers have
authority to enforce the act and regulations on land mentioned in the appointment.
The FFPA and Regulation 265/05 under the act control and regulate outdoor fires in fire
regions and restricted fire zones and require permits outside of a restricted fire zone
during the fire season.
DEVELOPMENT CHARGES ACT
The Development Charges Act gives the council of a municipality the authority to, by
bylaw, impose development charges against land to pay for increased capital costs
required because of increased needs for services arising from development of the area
to which the bylaw applies. Fire protection services is one of the services to which a
portion of the development charges levy may be applied.
CORONERS ACT
Where a death occurs, fire departments should be aware of the act and the power of a
coroner regarding movement of the body.
The Coroners Act also grants to a coroner the power to call an inquest. A public hearing
reviews the circumstances around the death of a person in the hopes that similar deaths
can be prevented in the future. A jury will make recommendations based on the
REPORT NO.: ESD-018-12 PAGE 56
evidence that they have heard, and the jury's findings are distributed to persons,
agencies or ministries of government who may be able to implement them. These
persons are asked to respond to the recommendations and are advised that their
responses are considered public documents available to anyone who requests them.
Recommendations are not mandatory and no one is legally required to respond to the
recommendations.
An inquest is not a criminal court of record and a coroner's inquest jury is not to make
finding of any legal responsibility. However, this information could proceed to civil
litigation.
DAY NURSERIES ACT
The Day Nurseries Act clearly defines the responsibilities of the operator in regard to
fire safety and emergency information. Regulation 262 of the act highlights the
approvals that are required from the local fire chief to operate a daycare facility.
EMPLOYMENT STANDARDS ACT
On a case-by-case basis, volunteer firefighters in Ontario have been determined to be
employees under this act and entitled to the rights contained in the act, such as
vacation time.
HUMAN RIGHTS CODE
A fire chief must at all times be aware of the responsibilities imposed on the municipality
and the fire department by the Human Rights Code. The code defines very clearly how
items such as boards of inquiry, complaints, discrimination and enforcement are to be
handled. The code deals with discrimination, the responsibilities of officers and
directors, and the prohibition of employer reprisals. The code also impacts on the
provision of facilities in fire stations, employment and retirement of personnel, and
medical testing for employees.
Recent amendments prohibit employers from forcing employees to retire because they
are 65 years of age and over. It does not prevent employees from doing so.
LABOUR RELATIONS ACT
This act facilitates collective bargaining between employers and trade unions. A number
of volunteer firefighter organizations have organized and entered into collective
bargaining with the municipality.
Part IX of the Fire Protection and Prevention Act, 1997 addresses collective bargaining
with specific regard to the fire service.
REPORT NO.: ESD-018-12 PAGE 57
MUNICIPAL FREEDOM OF INFORMATION AND PROTECTION OF PRIVACY ACT
The purpose of the Municipal Freedom of Information and Protection of Privacy Act is to
ensure that information held by municipalities and local boards is generally available to
the public and to protect the privacy of individuals with respect to personal information
and ensure that "personal information" is available to the individual to whom the
information relates but not available to others.
PESTICIDES ACT
Under the Pesticides Act, it is mandatory that all persons who wholesale pesticides,
and/or retail certain pesticides, must notify the fire department that there are quantities
of these pesticides stored on the premises. The fire department having jurisdiction
should visit the premises and become aware of where the pesticides are stored, and in
what quantities. Preplanning is extremely important, and every fire department should
develop a sound, logical preplan for occupancies with pesticides.
WORKPLACE SAFETY AND INSURANCE ACT
The fire chief should have in place an operations guideline for reporting of all accidents
or injuries within the fire department. All officers and fire department members must also
be aware of the requirements for first aid training and standards for first aid kits within
the fire station and for placement of fire apparatus and other response vehicles.
PRESUMPTIVE LEGISLATION
Presumptive legislation allows the government to identify, through regulations, specific
diseases or heart injuries of firefighters and fire investigators that would be presumed to
be work-related for the purpose of workers' compensation, unless the contrary is shown.
O. Reg 253/07 contains provisions whereby certain illnesses contracted by firefighters
and fire investigators are presumed to be the result of the occupation.
FEDERAL LEGISLATION
LEGISLATION AREAS OF SCOPE / CONCERN MINISTRY
RESPONSIBLE
Criminal Code (Bill C-45) Establishes criminal charges for negligent acts Justice
in the workplace by directors, officers or
corporate decision-makers
Canada Shipping Act Registration and crew training requirements Justice
REPORT NO.: ESD-018-12 PAGE 58
Transportation of Fire chief's duty to report Transport Canada
Dangerous Goods Act
(Federal)
Canadian Charter of Hiring practices Justice
Rights and Freedoms
CRIMINAL CODE (BILL C-45)
Bill C-45 was given Royal Assent in November 2003. It amends the Criminal Code by
broadening the description of an "organization" to include a public body and holds
organizations responsible for criminally negligent acts in the workplace. The legislation
also imposes a legal duty on all those who direct work to take reasonable measures to
protect employee and public safety. Directors, officers, corporate decision-makers and
virtually all persons directing work in the workplace now face legal liability, which could
result in a charge of criminal negligence.
CANADA SHIPPING ACT
The purpose of the Canada Shipping Act and the accompanying regulation (Section 21
of the Crewing Regulations) is to ensure every aspect of marine safety on commercial
vessels and their operations including the registration of ships, the certification of
officers, safety equipment requirements and the regulation of working conditions for
crews. Since emergency operations fall under "commercial" operations in the Canada
Shipping Act, and as such fire departments that provide water rescue services are
required to comply with each of these requirements.
TRANSPORTATION OF DANGEROUS GOODS ACT(FEDERAL)
This act covers the handling, offering for transport and transporting of dangerous goods
via air, marine, rail and road. The purpose of the legislation is to promote public safety
in these areas. Responsibility for controlling and regulating transportation is shared
between federal and provincial government, and they have enacted similar legislation
for road transport.
A person who is in charge, management, or control of dangerous goods, at the time he
or she discovers or is advised of a dangerous occurrence in respect of those goods,
shall immediately notify the appropriate emergency authority. Responding fire personnel
have the potential of discovering dangerous goods and will be responsible as per the
act.
REPORT NO.: ESD-018-12 PAGE 59
CANADIAN CHARTER OF RIGHTS AND FREEDOMS
Constitutional law, including the Canadian Charter of Rights and Freedoms, does not,
on its own, apply directly to employment issues, and only becomes an issue when
challenged in a human rights tribunal. In Canada, a person should not be excluded from
employment based on race, national or ethnic origin, color, religion, sex, age, or mental
or physical disability. Hiring decisions made by employers must be legally defensible.
REPORT NO.: ESD-018-12 PAGE 60
Appendix C
Building Stock
Type of Major Number of Type of Major Number of ;
Risk Level Risk Level
Occupancy by'OBC Occupancies Occupancy by OBC Occupancies
Group A, Division 1
Motion Picture
Theatres 1 Moderate
Group A, Division 2
Bowling Alley 2 Low Licensed Beverage 55 High
Establishments
Child Care Facilities 34 Moderate Museums 2 Low
Churches 45 Low Restaurants 25 Moderate
Clubs, non residential 6 Low Schools 42 Low
Community Halls 9 Low Undertaking Premises 5 Low
Libraries 4 Low
Group A,Division 3
Arenas 6 Moderate Indoor Swimming Pools 2 Low
Group A,Division 4
Amusement Park 1 Low
Group B, Division 2
Homes for the Aged 4 Extreme Nursing Homes 3 Extreme
Hospitals 1 Extreme
Group B, Division 3
Residential Care
8 Extreme
Facilities
REPORT NO.: ESD-018-12 PAGE 61
Type of Major Number of Type of Major Number of
Risk Level Risk Level
Occupancy by QBC Occupancies Occupancy by OBC Occupancies
Group C' Group C
Boarding/Rooming Low Rise Residential
19 B&B High 100 High
Houses under 6 stories
Dual/Residential/
61 High Other Residential 69 Moderate
Business/Apt
Farms w/o residence 1043 Low Recreation Camps 3
Farms with no
residence 555 Low Residential Homes 26949 Moderate
Group Homes 11 Extreme Semi/Detached 936 Moderate
Residential
Seasonal
High Rise Residential
3 High Dwellings/Mobile 45 Moderate
6—12 storeys
Homes
Hotel/Motel/Lodging 6 Moderate Shelters for Women 1 Moderate
Group D Group D
Banks 14 Low Small Tool/Appliance 3 Low
Rental
Dental Offices 6 Low Retail stores 7 Low
Medical Offices 2 Low Retail Plazas 33 Low
Offices(General) 64 Low Converted homes to 42 Low
business
Police Stations 1 Low
Group E Group B
Department Stores 3 Moderate Supermarkets 6 Low
Restaurants under 30 92 Low Big Box Stores 2 Moderate
REPORT NO.: ESD-018-12 PAGE 62
Type of Major Number of Risk Level Type of Major Number of
Risk Level
Occupancy by'OBC Occupancies Occupancy by OBC Occupancies'
Group E: Group E
Stores 95 Low
Group F; Group F
Group F, Division 1
Rubber Processing
1 Extreme
Plants
Group F, Division 2
Electrical Substations 27 High Self-Services Storage 6 High
Buildings
Lumber yards 4 High Service Stations 23 High
Other Large
6 High Standard Industry 143 Moderate
Operations
Marinas 3 High Tire Storage 1 High
Repair Garages 32 High Warehouses 16 High
Salvage Yards 5 High Woodworking 1 High
Factories
Group F, Division 3
Communication
16 Moderate Transformer Station 13 Moderate
Towers
Laboratories 1 Moderate Water Pumping 2 Moderate
Stations
Power Plants 1 Extreme Water Treatment 3 Moderate
Sewage Station